Upload
lynhu
View
234
Download
1
Embed Size (px)
Citation preview
Textbook Policy March 2008
March 2008
Republic of Namibia
“Building a Learning Nation”
2
Table of Contents
Explanation of terms ......................................................................................................................... 3
The Vision of the Textbook Policy ................................................................................................... 3
Mission of the Textbook Policy ......................................................................................................... 3
Introduction........................................................................................................................................ 4
Background and Context ................................................................................................................................ 4
Textbook provision: the international context ................................................................................................ 4
Providing textbooks to schools ....................................................................................................................... 4
Textbook supply chain: current operational status ......................................................................................... 5
Policy Framework .............................................................................................................................. 5
Policy Goal ..................................................................................................................................................... 5
Guiding Principles .......................................................................................................................................... 5
Policy Objectives ............................................................................................................................................ 5
Priority Policy Strategies ................................................................................................................................ 6
3
Explanation of terms
Some terms used in this draft policy require a brief explanation.
Book provision: denotes the supply of learning support materials, including textbooks, to the education sector.
Learning Support Materials (LSMs): LSMs and textbooks are both used in this policy as terms to describe
learning materials. LSMs is regarded as a more generic term and includes non-print learning materials (e.g.
materials for the study of science and design and technology and computer software such as CD-Roms).
Supply chain: This is an expression for the processes involved in bringing textbooks and other learning support
materials from the hands of the author (or creator) to the end user and for linkages between author and consumers
(in this case learners and teachers).
Textbook: refers specifically to printed curriculum materials in book format.
The Vision of the Textbook Policy
The Textbook Policy aims to pave the way forward for learners in formal education to have equitable access to learning support materials (LSMs) to develop to their full potential in order to make a meaningful contribution to
economic development.
Mission of the Textbook Policy
To plan and implement an integrated, sustainable and coordinated learning support materials (LSMs) supply chain
that will provide the best value, curriculum relevant textbooks and other LSMs in an equitable way to all learners
and teachers. This will have a direct and measurable impact on the quality of learning opportunity for all learners.
4
Introduction
The National Textbook Policy was prepared following a review of current textbook and other learning materials
development procedures and practices which included field visits and wide consultation with all stakeholders
including MoE central and regional officials, representatives of commercial publishing and distribution companies,
school personnel and local communities.
Background and Context
Textbook provision: the international context
Textbooks often determine what learners learn and decide what they should be taught. Teachers base their lessons
on and choose lesson content from what textbooks contain. They are frequently the only reading matter students
have access to and examinations are often to a considerable extent based on an ability to reproduce what is to be
found in textbooks.
Without a textbook, many teachers may not be able to teach effectively. In many developing countries, where
teachers might be inadequately trained, the textbook is an indispensable resource. It is often perceived as the sole
authority for what is to be taught, whereas in developed countries where a greater variety of books and reading
materials are available, it may only be a supplement to learning.
Research has shown that textbooks are a cost-effective means of improving educational achievement, especially in
the short to medium term. In countries where reading materials are scarce, they have an important role to play.
Learning can be enhanced even when there is only one mediocre textbook for every 2-3 students. Even when not
mediated by a qualified and experienced teacher, textbooks can have a significant impact on educational
achievement.
The importance of book development as an essential pre-requisite for social and economic development is
neglected nationally.
The development of materials in support of curriculum implementation is a complicated and time consuming
exercise, fraught with difficulties compared with, say, writing and publishing a novel.
An important driver for putting this new policy in place at this time is the planned six-fold increase in government
investment in LSMs over the next five years through Phase 1 of the Education and Training Sector Improvement
Programme (ETSIP). This policy will determine the nature of that essential relationship with publishers which will
be modified to improve the performance of the textbook supply chain so that it performs better, provides better
value for money by reducing unit costs, and will deliver in a cost effective way, relevant learning support materials
on an equitable basis.
Providing textbooks to schools
Textbooks are developed by publishing houses in the private sector, following the curriculum and syllabi developed
by the National Institute for Educational Development (NIED).
The textbooks for teaching in Namibia’s educationally recognized 13 languages of instruction are developed by the
commercial publishers in collaboration with NIED, GTZ (Afrila) and the curriculum unit of the MoE. All textbooks
in education require the evaluation and approval of NIED’s curriculum panels. The approved textbook titles are
listed in the official catalogue which is sent to schools annually from which schools select books to order. Book
capitation allowances are set by the regional education offices (REOs) for the schools in their region, but vary
widely suggesting that REOs use different formula for calculating the per capita book allowance.
Book orders are reviewed by school inspectors at the circuit (district) level, consolidated at the 13 regional
education offices, and sent to the contracted distributors. They raise proforma quotations and return them to REOs
who check them against the school book budget and then submit to the Directorate of General Services of the MoE
for procurement. The textbooks are issued to teachers who use them in the classroom as their principal instructional
tools. At schools where there is adequate supply of textbooks, teachers issue the books to their learners to take
books home for study and homework.
5
Textbook supply chain: current operational status
The three key stages in the textbook supply chain are evaluation and selection, procurement and delivery and
payment.
The provision of textbooks is inadequate and seriously constrains the quality of education, especially at schools in
disadvantaged and poor communities, where buying a textbook is not an option as these are not easily available.
English, mathematics and the sciences are identified as critical subjects that affect students’ overall performance.
Policy Framework
Policy Goal
The policy goal is to direct the effective and efficient planning and management of the national selection, provision
and distribution of textbooks and other LSMs so as to achieve the highest standards, best value and equity in the
selection, procurement and delivery of all LSMs to assist and facilitate quality learning across the curriculum for
the benefit of all learners and teachers.
The overall objective of the policy is to ultimately achieve a textbook to learner ratio of 1:1 for core subjects in the
first instance. At primary level this would mean eight textbooks per learner and at secondary level thirteen.
With the introduction of curriculum changes over the past few years and the lack of information on current
textbooks inventories at school level it is difficult to project the investment needed to reach and sustain the ideal
ratios. In future the revision of curricula and textbooks will be aligned.
Guiding Principles
All aspects of LSMs management and the provision of LSMs to schools need to acknowledge the integrity of an
integrated LSMs supply chain cycle. LSMs, their selection, procurement, distribution, use, coordination and
management are central to improving educational standards, equality of access and improving the efficiency of the
system. With the right LSMs, in the right place at the right time, teachers can be expected to provide a holistic
teaching and learning environment which responds to the needs of the curriculum. In the process they will be
providing all learners with the essential foundation literacy and numeracy skills that they need to gain full benefit
from their educational programme and gain the skills to compete effectively in a knowledge-based economy.
All learners, irrespective of any special educational and other needs they may have, should have access to relevant
and appropriate LSMs. The essential LSMs will be specified in the curricula.
Policy Objectives
To promote the cost effective and timely supply of good quality, relevant curriculum materials to all learners
and teachers as a basis for the teaching and learning of skills vital to personal, social and national development
in a knowledge-based economy.
To ensure equal access to quality LSMs for all learners in all schools, in all regions.
To ensure that the textbook supply chain (procurement and distribution) is managed efficiently and
transparently and provides best value for money whilst catalysing the growth of the indigenous publishing
industry so as to contribute to the improvement in the quality of educational opportunities and learning
outcomes.
To improve the efficiency of educational management and administration at every stage of the supply chain
process.
To ensure that the best value and educationally relevant LSMs are made available to all learners.
To broaden access to LSMs and other reading materials to improve the reading culture in schools.
To ensure that those learners with special educational needs are catered for.
To ensure that LSMs are attractive and durable and reflect current, regional and international perspectives and
approaches.
6
To increase the annual per-learner allocation for LSMs.
To establish an autonomous and independent National Textbook Board whose members will represent a wide
range of stakeholders
Priority Policy Strategies
The following strategies have been identified to achieve the objectives of the National Textbook Policy:
Establishment of a National Textbook Development Board to provide the authority to govern all aspects of
national textbook development. It could have a similar role to that of the National Examination and Assessment
Board.
Establishment of a supply chain management unit within the Directorate of Programmes and Quality
Assurance to take responsibility for ensuring all operational stages and logistical processes of the textbook
supply chain are working in a synchronised and effective way.
Provision of mother-tongue literacy materials.
Teacher training and support especially for Grades 1–3 in order to improve functional literacy standards and
the utilisation of LSMs.
Reviews by the National Institute for Educational Development of the existing policy on the curriculum
reform cycle and its articulation with the timetable for new textbook development, field testing and
publication.
Review of the policy on evaluation of textbooks by subject committees; and the purpose, design and
functionality of the annual textbook catalogue.
Changed MoE tendering and contracting of textbook distributors including the introduction of a minimum
of three-year tender in recognition of the major investment needed to establish efficient distribution,
administration and logistics that must be amortised over a reasonable period.
Use of the latest Education Management Information System) (EMIS) 15-day school survey enrolment data as
well as the annual census to calculate the textbooks capitation allowance for schools based on an agreed
transparent standardised formula and ring fenced.
Modify collection of data for EMIS to monitor availability, utilisation and distribution of relevant textbooks
annually.
Establishment of performance and service standards with regard to all aspects of order processing and
administration and the introduction of a system to monitor them.
Engagement at regular intervals of a textbook development expert to review and evaluate the effectiveness of
the field testing and use of textbooks provided to schools.
Improvements in teacher:learner textbook ratios so as to achieve a 1:1 ratio for core subjects by 2013-2014.
Standard stock control practices apply to textbooks and LSMs.
The policy will be implemented with assistance from ETSIP for in-country advisory support, on-the-job training,
operational costs and textbook procurement.
Textbook Policy Supporting Documentation
March 2008
Republic of Namibia
“Building a Learning Nation”
ii
Table of Contents Abbreviations and acronyms ........................................................................................................... iii
Policy Strategies ................................................................................................................................. 1
Policy Implementation: institutional framework, coordination and management ..................... 4
Coordination and Management .................................................................................................................. 4
Implementation framework (indicative) .................................................................................................... 4
National Textbook Board .................................................................................................................. 9
Indicative terms of reference ..................................................................................................................... 9
Introduction ............................................................................................................................................... 9
Purpose ...................................................................................................................................................... 9
Funding ...................................................................................................................................................... 9
Indicative structure and functions .............................................................................................................. 9
Establishment of National Textbook Board............................................................................................. 10
Constitution of Board .............................................................................................................................. 10
Term of office of the Board ..................................................................................................................... 10
Vacation of office and filling of casual vacancies ................................................................................... 10
Secretariat to the Board ........................................................................................................................... 11
Committees of Board ............................................................................................................................... 11
Meetings and decisions of Board ............................................................................................................. 11
Payment of allowances to non-staff members ......................................................................................... 12
Functions of Board .................................................................................................................................. 12
Rules by Board ........................................................................................................................................ 12
Textbook Supply Chain ................................................................................................................... 13
Current annual integrated textbook supply chain processes .................................................................... 13
Summary of the findings from the review of the LSMs Supply Chain ................................................... 14
Suggested future supply chain schedule .................................................................................................. 29
Strengthening the Management of the Supply Chain .................................................................. 26
Terms of reference ................................................................................................................................... 26
SCMU: Proposed roles and responsibilities ............................................................................................ 27
SCMU: Organisational Structure ............................................................................................................. 27
Proposed Organisational Structure for the Textbook Supply Chain Management Unit .......................... 28
iii
Abbreviations and acronyms
CBO Community-based Organisation
ECD Early Childhood Development
EMIS Education Management Information System
ETSIP Education and Training Sector Improvement Programme
EU European Union
GRN Government of the Republic of Namibia
IALS International Adult Literacy Survey
ICT Information Communication Technology
KBE Knowledge-Based Economy
LSM Learning Support Materials
M&E Monitoring and Evaluation
MLA Monitoring Learning Achievement
MoE Ministry of Education
NGO Non-government Organisation
NIED National Institute for Educational Development
NTB National Textbook Board
OVCs Orphans and Vulnerable Children
PQA Programmes and Quality Assurance
SADC Southern African Development Community
SDF School Development Fund
VAT Value Added Tax
VTC Vocational Training Centre
1
Policy Strategies
Reform of integrated textbooks and other LSMs supply chain
The management and administration of all parts of the chain need re-designing and new sets of rules put in place
that those responsible will be required to adhere if the performance targets are to be achieved.
The following strategies have been identified to achieve the above policy objectives. Their order of priority will be
determined during the detailed policy implementation planning stage and influenced by human and material
resource constraints. The Ministry of Education sees the provision of LSMs as a continuous process in which
effective management of the whole textbook supply chain cycle is required.
To ensure effective planning and management the following policy strategies will be adopted.
1. Development of a detailed action plan for the planning and implementation of the improved, integrated
textbook supply chain and related policy priorities.
Establishment of a National Textbook Board
2. Establishment of an independent National Textbook Board which, working on an agency basis, would
provide the authority to guide all aspects of national textbook provision.
The Board would support and monitor every stage of the supply chain and performance standards,
coordinate the interests of the various stakeholders, review and formulate strategic policy, ensure that there
is compliance with the agreed articulation between the curriculum renewal cycle and textbook development
by the publishing industry, price regulation, commission research into national textbook development
programmes, broker and facilitate regional initiatives in collaborative textbook co-publishing and joint
curriculum development and alignment programmes (with NIED); and raise public awareness.
It would also work with NIED to set minimum standards for the field testing (by publishers) of curriculum
materials; and regularly review the assessment and evaluation criteria used by subject panels for the
curriculum material (with teacher guides) submitted by publishers and independently monitor these.
Poor numeracy and literacy standards
3. In response to the serious situation regarding functional literacy and numeracy standards, there must be a
focus on the provision of mother-tongue literacy materials and teacher training and support for Grades 1-3
to improve foundation skills, with a pro-poor focus on the six most disadvantaged regions. The strategy
should be to adopt the Upgrading African Languages (Afrila) model successfully developed by the
Ministry (with GTZ). This would be enhanced by classroom libraries/book corners, ‘flooding’ the classes
with mother-tongue (11 to 13) literacy and reading materials; and utilising Grade 12 graduates, working in
their mother tongue, as teaching assistants. Implementation of this strategy would require Ministry and
ETSIP budget re-orientation over the next 3-5 years; and for the Ministry to kick start the local publishing
of vernacular language reading material through publishing subsidies.
4. Work closely with the ICT Policy Steering Committee to ensure that every opportunity is exploited for ICT
in schools to be used to enhance and support the use of LSMs for teaching and learning.
5. The NTB would work closely with the NIED and the four teacher training colleges to ensure that the
teacher education syllabus for the Basic Education Teaching Diploma puts greater emphasis on teaching
and learning foundation literacy and numeracy skills in mother-tongue languages.
6. Recognising that to create effective libraries in all primary schools is a long term target, it is essential to
provide a wide range of reading materials in Grades 1-3 classrooms immediately. To achieve this, book
boxes containing a prescribed collection of reading materials, posters, cards, games, would be provided for
all classrooms.
Review of existing NIED policies
7. NIED, in collaboration with the proposed NTB, will review existing policy on the curriculum reform cycle
and its articulation with the timetable for new LSMs development, field testing and publication. A revised
policy will be formally adopted – after taking into account possible benefits of aligning with SADC
regional curricula – and then will become the key driver for the development and provision of new LSMs
after the redefinition of NIED’s curriculum materials development role.
2
8. The policy on the evaluation of LSMs will be submitted to the subject evaluation committees for evaluation
and review. Key issues include limiting numbers of textbooks per subject grade in the annual catalogue,
commissioning textbooks, royalties, prescribed textbooks and their lifespan, charging evaluation fees and
articulation with curriculum reform. The outcome will be a new policy directive determining how this part
of the supply chain would function and NIED’s role therein.
9. The purpose, design, functionality (e.g. every new title has a synopsis), pricing and approval criteria for
inclusion in the annual catalogue will be reviewed. It is a key instrument in determining the relationship
between the Ministry, NIED and the publishers. Publishers must formally sign off on the prices including
VAT of all of their titles in the catalogue. The outcome would be a new protocol governing this
relationship and would be reflected in the contract between the Ministry, the distributors and the
publishers. The review will also look at inclusion in the catalogue – possibly as supplements – of LSMs for
special education, science equipment and materials as well as the option for the Ministry to advance bulk
purchase copies of the textbooks for core subjects so introducing economies of scale and reducing the unit
cost.
Procurement: tendering and contracting for distributors
10. The Ministry tender for the procurement of distributors should be allocated for a minimum of three years
recognising the major investment that is needed to establish efficient distribution, administration and
logistics and that this needs amortising over a reasonable period.
11. A detailed review of the technical specifications, compliance and performance standards of the tender for
distributors to the primary and secondary school levels should be carried out. The aim would be to achieve
a balance of competitiveness and value for money whilst providing commercial opportunities for smaller
indigenous distributors through applying the standard price preference criteria.
12. The transparency of the relationship between bidders that are part of the same commercial group as the
main publishers is subject to careful scrutiny as conflicts of interest could arise. Cash flow constraints will
be a major factor with the increase in volume of LSMs orders and the Ministry needs to put in place
mechanisms for assisting distributors with their cash flow position by part payment of orders when they are
placed as long as a bank guarantee is in place.
Finance and budgeting
13. The LSMs capitation allowance for schools, calculated by REOs from the budget allocated by the Ministry,
should be based on an agreed and transparent standardised formula and ring fenced. It should use the latest
EMIS 15 day school survey enrolment data. The formula will be linked to the per capita funding formula
when introduced, which will also allow for achieving textbook ratio norms within the resource constraints
applicable annually and provide extra provision for disadvantaged regions and targeting early years
mother-tongue literacy activity.
14. The Ministry aims to decentralise the textbook provision. Target textbook student ratios and in turn
accurate budget forecasts against these ratios should be based on a known school LSMs stock position.
15. The Ministry is exploring ways of school-based purchasing methods such as vouchers linked to proven
school-based monitoring and control systems.
Order processing and administration
16. Key to the early delivery of orders is the availability of textbook stock held by the publishers. Further
negotiations with the publishers and distributors regarding this need to be commenced so that an agreement
can be reached where both parties gain by introducing stability which results from the Ministry’s longer
term plans for textbook supply and delivery. The key objectives are to reduce unit costs and decrease
delivery times.
17. Progress with decentralisation of administrative and financial operations to the regional education offices
should be accelerated. This would provide the opportunity to remove at least three time-consuming steps in
the current supply chain paper trail.
Selection and management of LSMs by schools
18. In order to promote the effective use of LSMs it is necessary to educate teachers, learners and the
community and to employ systems of management and control. All schools should receive training in
3
managing and caring for LSMs: their storage, use, lifespan extension, stock management system, basic
library management skills and old book stock disposal procedures. Teachers will receive additional training
to assist them with utilisation of textbooks and setting up and managing a book corner/book boxes.
19. Providing additional, targeted learning support to the 20-30% OVCs in classes through possibly utilising
classroom assistants in the form of Grade 12 leavers and collaboration with other ministries and NGOs and
CBOs is essential if these young learners are to achieve functional mother-tongue literacy skills and not
slip behind as they progress through the system.
20. The textbook asset management procedures should be captured in a basic school level LSMs management
manual available to all schools.
21. The teacher education curriculum development at NIED will ensure that the teacher training includes a
module on the selection, use, care and management of LSMs.
Monitoring and evaluation
22. The Ministry could from time to time contract a textbook expert to review and evaluate the effectiveness of
the field testing and use of curriculum materials provided to schools. This will be integrated into the overall
monitoring and evaluation design methodology.
23. The monitoring and evaluation of the supply chain and textbook provision and use will form part of the
overall ETSIP monitoring and evaluation system integrated into EMIS.
Setting targets textbook:learner ratios
24. The overall objective of the policy is to ultimately achieve a textbook:learner ratio of 1:1 for core subjects
in the first instance. At primary level this would mean eight textbooks per student and 13 at secondary
level. With the introduction of curriculum changes over the past few years and the lack of information on
current LSMs inventories at school level it is difficult to project the investment needed to reach and sustain
the ideal ratios.
4
Policy Implementation: institutional framework, coordination and management
Coordination and Management
There are three key players responsible for coordinating and managing the implementation of the policy strategies:
The National Institute for Educational Development — curriculum reform/renewal and synchronising with
publishing of new curriculum materials, evaluating curriculum materials and LSMs catalogue.
The proposed National Textbook Board — an independent body responsible for governance, monitoring
standards, policy review, regional collaboration
The key players at schools, the principals, at Regional Directorates, General Services and Programmes and
Quality Assurance Directorate direct coordination and management of all participants and processes involved
in supply chain operations and logistics; HR planning and development.
Implementation framework (indicative)
Objective By 20?? achieve a textbook : learner ratio of 1:1 for core subjects.
Scope Grades 1–12: primary (8 textbooks/learner), secondary (13 textbooks/learner)
Activity Inputs Outputs Indicators Deadline
1. National
Textbook Policy
formulated and
adopted.
TA in textbook
development.
Policy document
submitted to Permanent
Secretary.
Policy approved and
launched by Minister.
Fourth quarter
2007
2. Introduction of
National Textbook
Policy.
Induction workshops
for stakeholders and
key central, regional
and district personnel in
the MoE including
inspectors and advisory
teachers, commercial
publishing and
distribution companies.
3 days x 13 workshops
1 day x 1 workshop
54 inspectors, 33
resource centre
managers and 108
advisory teachers
trained.
All stakeholders fully
informed about
implementation plan.
54 inspectors, 33
resource centre
managers and 108
advisory teachers
trained to implement
National Textbook
Policy.
All MoE, commercial
and other stakeholders
fully informed about
implementation plan.
First quarter
2008
3. National
Textbook Development
Board established.
Stakeholders nominate
Board representatives.
Expressions of interest
called for position of
Chair.
Secretariat structure
developed.
Secretariat positions
advertised.
Board premises sought.
Representatives
nominated.
Chair appointed.
Secretariat structure
approved.
Secretariat positions
filled.
Board premises
established..
First Board meeting
held.
Secretariat operational.
First quarter
2008
4. Supply Chain
Management Unit
(SCMU) established.
TORs and structure
developed.
SCMU positions
TORs and structure
completed and
submitted for approval.
TORs and structure and
SCMU approved and
becomes operational.
First quarter
2008
5
Activity Inputs Outputs Indicators Deadline
advertised.
SCMU training needs
analysis.
SCMU training
programme developed.
need to know needs
SCMU positions filled.
SCMU training
programme completed.
SCMU personnel
trained in all aspects of
role
5. Provision of
mother-tongue literacy
materials and support
for Grades 1–3.
6. Existing NIED
policy on curriculum
reform cycle reviewed.
TA to assist NTDB and
NIED review policy on
curriculum reform cycle
and link with timetable
for development and
publication of new
textbooks.
1 x person month.
Revised policy
completed and
submitted for approval.
Revised policy
approved and adopted.
Curriculum reform
cycle gives publishers
realistic time in which
to develop, field test,
submit for approval and
publish textbooks that
support changes to the
curriculum.
Second quarter
2008
7. Existing NIED
Policy on evaluation of
textbooks by subject
committees reviewed.
TA to assist NTDB and
NIED review policy on
evaluation of textbooks
by subject committees.
1 x person month.
Revised policy
completed and
submitted for approval.
Revised policy
approved and adopted.
New policy directive
introduced determining
how this part of the
supply chain will
function.
Second quarter
2008
8. Purpose, design
and functionality of
textbook catalogue
reviewed.
TA to assist NTDB and
NIED review purpose,
design and functionality
of annual textbook
catalogue.
TA also to assist with
catalogue designers
training needs analysis
and development of
catalogue designers and
catalogue users training
programmes.
2 x person months.
Revised catalogue
design completed and
submitted for approval.
Catalogue designers
training programme
completed.
Catalogue users training
programme completed.
Revised design
approved and adopted.
Catalogue with revised
design published and
distributed.
Schools use revised
catalogue effectively to
select and order
textbooks.
First quarter
2009
9. Changes to
tendering and
contracting of
distributors.
MoF to assist MoE
review technical
specifications,
compliance and
performance standards
of tender for
distributors.
Review completed and
report recommending
changes submitted for
approval.
Recommendations
approved and adopted
including minimum
three-year contracting
of distributors.
Second quarter
2009
10. Textbooks
capitation allowance to
be based on
standardised formula
and ring fenced.
SCMU to prepare
annual textbook
budgets using standard
formula using latest
EMIS 15-day school
Textbook capitation
allowances for schools
based on standardised
formula completed
using latest EMIS 15-
Schools receive
textbook capitation
allowances based on
standardised formula
using latest EMIS 15-
Second quarter
2009
6
Activity Inputs Outputs Indicators Deadline
survey enrolment data. day school survey data. day school survey data.
11. Improved use,
management and care
of textbooks by schools.
TA to assist MoE with
training needs analysis
and development of
management and care
training programme.
SCMU to ensure
textbook asset
management
procedures available to
all schools and that
NTDB and NIED to
ensure teacher training
syllabus to include
module on the use, care
and management of
textbooks.
Textbook management
and care training
programme completed.
Basic school level
textbooks management
manual completed and
despatched.
Module on use, care
and management of
textbooks developed
and included in teacher
training syllabus.
Teachers trained in the
effective use,
management and care
of textbooks so adding
to the shelf-life of
books.
All trainee teachers
trained in use,
management and care
of textbooks.
Third quarter
2009
12. Performance and
service standards for
order processing
adopted.
TA to assist SCMU
develop textbooks
supply chain operations
manual and training
program.
TA also to assist SCMU
review order processing
capacity and
effectiveness of current
administrative systems.
Operations manual and
training program
completed and
submitted for approval.
Bottlenecks and
capacity issues
identified and report
completed
recommending
improvements.
Supply chain operations
manual approved and
adopted.
Textbook orders and
payments to suppliers
processed more
efficiently and
effectively.
Third quarter
2009
13. Effectiveness of
field testing and use of
textbooks reviewed and
evaluated.
TA will be engaged at
regular intervals to
review and evaluate the
effectiveness of the
field testing and use of
textbooks by schools.
Regular reports with
recommendations
submitted.
Recommendations
approved and adopted
resulting in increased
effectiveness of field
testing and textbook
use.
2008–???
14. Progressively
improve and ultimately
achieve
textbook:learner ratio of
1:1 for core subjects
15 day EMIS school
survey; improved
literacy/numeracy
standards; improved
efficiency
7
Summary of Implementation Schedule
Activity 2007 2008 2009 2010 2011 2012 2013
Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4
1. National Textbook Policy formulated
and adopted.
2. Introduction of National Textbook
Policy
3. Supply Chain Management Unit
established and operational.
Prioritise and schedule activities, job
specs, organise offices and equipment
(with TA support).
3a. Recruit and train unit staff at all
levels ( with ETSIP capacity
building programme)
3b. Prepare unit interim and annual
operational, human resource and
financial plan (with TA support)
3c. Prepare and trial supply chain
operations manual (outsource
using TA)
3d. Prepare supply chain calendar
(with stakeholders)
3e. Work with NIED to review and
redesign catalogue
3f. Coordinate tender process for 3 yr
textbook distribution contracts
3g. Implement comprehensive training
framework/road map for regions,
circuits, schools and other
participants (TA support)
3h. Design and implement service
contract monitoring system.
3i. Evaluate supply chain performance
(KPIs) and logistics efficiency
3j. Quarterly reporting to Textbook
Board.
8
Summary of Implementation Schedule
Activity 2007 2008 2009 2010 2011 2012 2013
Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4
4. National Textbook Development
Board established.
5. Agree strategy for achieving targets for
textbook norms and implement.
Provision of mother-tongue literacy
materials for Grades 1–3 high priority
6. Existing NIED policy on curriculum
reform cycle reviewed.
7. Existing NIED Policy on evaluation of
textbooks by subject committees
reviewed.
8. Purpose, design and functionality of
textbook catalogue reviewed.
9. Changes to tendering and contracting
of distributors adopted.
10. Textbooks capitation allowance to be
based on standardised formula and ring fenced.
11. Improved use, management and care of
textbooks by schools.
12. Performance and service standards for
order processing adopted.
13. Effectiveness of field testing and use
of textbooks reviewed and evaluated.
14. Progressively improve and ultimately
achieve textbook:learner ratio of 1:1 for core subjects
9
National Textbook Board
Indicative terms of reference
Introduction
The National Textbook Board (hereafter referred to as the ‘Board’) is an independent body responsible for
coordinating and managing all aspects of the Textbook Policy. The Board, whose members represent a wide range
of stakeholders, replaces the current Textbook Liaison Committee.
Purpose
The policy goal is to effectively and efficiently plan and manage the national selection, provision and distribution
of textbooks and other Learning Support Materials so as to achieve the highest standards, best value and equity in
the selection, procurement and delivery of all LSMs to assist and facilitate quality learning across the curriculum
for the benefit of all learners and teachers.
The Board will be responsible for monitoring all stages of the textbook and learning support materials (LSMs)
supply chain and performance standards; coordinating the interests of the various stakeholders; reviewing and
formulating strategic policy to ensure realistic scheduling between the curriculum renewal cycle and the
development of new textbooks and LSMs by the commercial publishing industry; and price regulation
The Board will also work with NIED to set minimum standards for the field testing of curriculum materials, and
regularly review and monitor the processes used by subject panels to assess textbooks and other LSMs (including
teacher guides) submitted for evaluation by publishers.
Funding
The Board and Secretariat will be funded by the MoE and private sector stakeholders. This funding will include a
levy, to be suggested by the Board on the basis of a budget prepared by the chairperson, which comprises a
percentage of the annual cost of the textbooks and all other learning support materials.
Fees will be charged for the evaluation of all new materials submitted by publishers for inclusion in the annual
textbook and LSM catalogue. Income from these fees will be used to pay NIED subject panels.
Board members will be paid travel and subsistence allowances, should the need arise. Staff of the Secretariat will
be paid salaries in accordance with government employment regulations.
Indicative structure and functions
National Textbook Board
Ministry of Education
NIED
Supply Chain:
School Principals
Regional Directorate: Inspectors
General Services: Procurement &
Stock Control
PQA Directorate, MoE
MoE representatives
Publishers’ representatives
Distributors’ representatives
Printers’ representative
Teachers’ Union representative
National Library representative
Secretariat
Literacy NGO representative
10
Establishment of National Textbook Board
It is proposed to establish a board to be known as the National Textbook Board.
Constitution of Board
1. The Board will consist of 13 members appointed by the Minister, in line with gender-balanced
representation, as follows:
a) one person selected by the Minister;
b) one person representing the 13 directors of Regional Directorates;
c) the Director of the Directorate: General Services of the Ministry;
d) the Director of the Directorate: National Libraries and Archive Services of the Ministry;
e) the Director of the Directorate: National Institute for Educational Development of the Ministry;
f) the Director of the Directorate: Programmes and Quality Assurance of the Ministry;
g) one person nominated by recognised teachers' union or associations;
h) three persons nominated by the Association of Namibian Publishers;
i) one person nominated by the Book Traders’ Association;
j) one person nominated by the printers’ trade association;
k) one person nominated by the literacy non-governmental organisation.
2. The Minister must, for the purposes of appointment of members of the Board, in writing invite the bodies
referred to in subsection 1(g) to 1(k), inclusive, to nominate persons within a specified period.
3. If a nomination referred to in subsection 2 is not received by the Minister within the period specified in the
invitation, the Minister may appoint such person as the Minister thinks fit.
4. The Minister must appoint one member of the Board who must be a staff member of the Ministry as
chairperson of the Board.
5. The Minister may, for each member of the Board, appoint an alternate member and must, for the purposes of
such appointment for the members' contemplated subsection 1(g) to 1(l), inclusive, in writing invite the
bodies referred to above to nominate persons within a specific time period.
6. If a nomination referred to in subsection 5 is not received by the Minister within the period specified in the
invitation, the Minister may appoint such person as the Minister thinks fit.
Term of office of the Board
A member of the Board will hold office for a term of three years and is eligible for reappointment at the expiration
of that term.
Vacation of office and filling of casual vacancies
1. A member of the Board vacates office, if such member:
a) is convicted of an offence and sentenced to imprisonment without the option of a fine;
b) has been absent for three meetings of the Board in a year, without the permission of the
chairperson of the Board;
c) is withdrawn by the nominating body; or
d) is removed by the Minister under subsection 2.
2. The Minister may remove a member of the Board, if such member:
a) is guilty of misconduct;
b) fails to comply with or contravenes the Education Act 2001; or
c) is by reason of physical or mental illness or for any other reason incapable of acting as a member
of the Board.
3. If a member of the Board dies or vacates office, the vacancy must be filled for the unexpired portion of the
term of office of that member in the manner contemplated in section 2.
11
Secretariat to the Board
The Board will be supported by a full-time Secretariat.
1. There must be a directorate/division/component/unit in the Ministry to act as the Secretariat to the Board,
consisting of:
a) a staff member of the Ministry designated by the Permanent Secretary as the secretary of the
Board; and
b) such other staff members of the Ministry as the Permanent Secretary may designate, one of whom
must be designated as the deputy-secretary of the Board.
2. The functions of the Secretariat will be:
a) to provide the required administrative and clerical assistance to the Board and any committee of
the Board; and
b) to provide all technical support required by the Board and any committee of the Board.
3. The secretariat must attend meetings of the Board but has no right to vote on any matter before the Board.
Committees of Board
1. The Board may establish one of more committees of the Board for the purpose of exercising and performing
any power of function of the Board which the Board may delegate to the committee.
2. A committee established under subsection 1 must consist of such members of the Board, including alternate
members, as the Board may appoint to the committee.
3. The Board may delegate any member of a committee to be the chairperson of that committee.
4. The Board is not divested of any power and function which has been delegated by it to a committee and may
amend or set aside any decision of such a committee.
Meetings and decisions of Board
1. The first meeting of the Board must be held at a place and time as the chairperson of the Board may
determine and, subject to subsection 3, any meeting of the Board thereafter must be held at a place and
time as the Board may determine.
2. If the Board has determined the place and time of a meeting and there cannot for any reason be a meeting
held at that place and time, the secretary of the board must, in consultation with the chairperson of the
Board, determine the place and time of the next meeting of the Board.
3. The chairperson of the Board may at any time convene a special meeting of the Board.
4. The majority of members of the Board forms a quorum for any meeting of the Board.
5. The chairperson of the Board or, in the absence of the chairperson, the vice-chairperson presides at all
meetings of the Board.
6. If both the chairperson and the vice-chairperson of the Board are absent from any meeting, the members
present must elect a member to preside at that meeting and that member may perform all the functions and
exercise all the powers of the chairperson.
7. The decision of the majority of the members present at any meeting of the Board constitutes a decision of the
Board and, in the event of any equality of votes, the member presiding has the casting vote in addition to a
deliberative vote.
8. The Board may, subject to the Education Act 2001, determine rules of the Board governing meetings and
procedures at meetings.
9. The expenses relating to the functions of the board must be defrayed from money appropriated for this
purpose by Parliament.
12
Payment of allowances to non-staff members
Members of the Board who are non-staff members must be paid such allowances, including travel and subsistence
allowances, as the Minister, with concurrence of the Minister of Finance, may determine.
Functions of Board
1. To monitor and evaluate all stages of the textbook and LSMs supply chain including selection, ordering,
pricing, distribution and payment of suppliers.
2. To ensure all textbook and other LSM development processes support the interests of both public and private
sector stakeholders.
3. To review and formulate strategic policy to ensure that there is compliance with the agreed articulation
between the curriculum renewal cycle and textbook development by the private sector publishing industry.
4. To regularly review and monitor the processes used by NIED subject panels to assess textbooks and other
LSMs (including teacher guides) submitted for evaluation by publishers.
5. To work with NIED to set minimum standards for field testing all new curriculum materials.
6. To broker and facilitate, in collaboration with NIED, regional initiatives in collaborative textbook and other
LSM co-publishing and joint curriculum development and alignment programmes; and to encourage the
growth of indigenous educational publishers.
7. To independently monitor school literacy and numeracy standards and, where appropriate, work with
regional and international bodies to establish comparative standards.
8. To commission studies and make recommendations regarding the application of value added tax (VAT) to
educational materials including textbooks and other LSMs.
9. To commission studies and make recommendations regarding and the requirements of current copyright
legislation in relation to the photocopying of textbooks and other print materials by schools.
10. To foster the delegation of authority and responsibility to regional education offices (and, ultimately, to
individual schools) for processing school textbook and other LSM orders, the issuance of purchase orders
and the processing of payments to suppliers.
11. To consult regularly with learners, teachers, school administrators, community members, tertiary
institutions, private sector suppliers and all other stakeholders regarding all aspects of textbook and other
LSM development and distribution to schools.
12. To advise the Minister for Education on all aspects of textbook and other LSM development and
distribution to schools.
Rules by Board
Subject to the Education Act 2001, the Board may, for the purpose of performing the Board’s functions referred to
in section 9, make rules relating to:
1. Ensuring cost effective and timely selection, procurement and delivery of textbooks to all schools.
2. Improving quality of textbooks provided to all schools.
3. Increasing quantities of textbooks in all schools.
4. Ensuring the textbook and other LSM requirements of all learners with special educational needs are catered
for.
5. Ensure that by working with the National Examinations and Assessment Board there is a close articulation
and coordination between the curriculum reform process and cycle and the textbook development cycle.
13
Textbook Supply Chain
Current annual integrated textbook supply chain processes
Curriculum planning and development
NIED
Call for submissions for annual textbook catalogue
NIED
Develop new textbooks and revise existing titles
Publishers
Plan textbook evaluation meetings
NIED
Textbook evaluations completed
NIED subject panels
Submit materials for inclusion in catalogue
Publishers
Finalisation of catalogue
NIED
Prepare inspection copies of new textbooks
Publishers
Catalogue printed and despatched to schools
NIED
Plan regional marketing
Publishers
Regional marketing
Publishers, schools
Schools select materials and place requisitions
sent to regions via circuit office
Proforma invoices requested from distributors
Regional offices
Requisitions sent to MoE
Regional offices
Continue development of approved new textbooks
Publishers
Field testing of approved new textbooks
Publishers, selected schools
Complete development of approved new textbooks
Publishers
Complete printing of all textbooks
Publishers
Proforma invoices sent to regional offices
Distributors
Textbooks ordered
MoE
Textbooks delivered to distributors
Publishers
Textbooks delivered to schools
Distributors
Delivery notes sent to regional offices
Schools
Proforma invoices and delivery notes sent to MoE
Regional offices
Payments made to distributors
MoE
14
Summary of the findings from the review of the LSMs Supply Chain
Supply chain issue Current shortcomings/
constraints/inefficiencies Proposed changes Policy implications/objectives
Global issues
Writing of new textbooks and/or revision of existing titles
Very limited commissioning by
Ministry/NIED.
Publishers develop new titles or revise
existing ones — based on syllabus changes.
Whole supply chain cycle starts too late in the
year as needs bringing forward to ensure
distribution of orders to all schools is
completed before end of school year.
Linked to planned curriculum changes to
reduce number of titles submitted for
evaluation and in turn approved for inclusion
in catalogue.
Also to become mandatory for publishers to
field test LSMs in collaboration with
Ministry/NIED and to submit related teacher
guide for approval with LSMs.
LSMs without teacher guides will not be
approved.
Supply chain must be demand driven.
Ministry is main customer so must take more
control of quality (content and format)
relevance and price through active
implementation of policies.
Use of other media to support learners
No schools broadcasting production unit in
Ministry.
As yet, very limited use of other media except
for Internet and CDs in some schools.
Tech/Na! (ETSIP) will equip and train school
staff in using ICT to support learning.
Currently no distance learning programmes
being used to upgrade teacher skills.
A lot of scope for e-learning/ICT to be used as
teaching resource as the ICT programme is
rolled out into more schools over the next 2
years. However significant numbers of rural
schools do not have electricity.
Integrate growth of school-based ICT capacity
into range of learner support strategies.
Co-publishing/support for publishing industry/regional partnerships
To date, lack of collaboration between
Namibian and other Southern Africa
publishers that might bring about economies
of scale. Prevented by Namibian curricula
which are not well aligned with other
Southern African countries.
Establish capacity (within NIED?) to research
where adaptations of other Southern Africa
textbooks are possible through co-publishing
arrangements to reduce development costs
and introduce economies of scale with
printing. Slow down the pace of curriculum
reform – only essential changes in the next 3-
5 years and then a minimum lead in time of 3
years for the introduction of new curricula.
Restrict the Namibian-isation of the curricula
particular in maths, English and sciences;
align with Southern African nations.
Encourage possible co-publishing agreements
between Namibian and other Southern
African publishers.
Link between supply chain cycle and academic year
Not synchronised with need to have all LSMs
orders delivered before the end of the school
year so that they are ready for use at the
beginning of the following school year.
Curricula changes introduced too quickly
Whole cycle to be brought forward to allow
adequate time so that all school orders are
processed and delivered by November each
year. All publishers with titles in the
catalogue must guarantee maximum delivery
times to distributor (penalty clauses in
Simplify supply chain and remove
bureaucratic bottlenecks. Tighter procedures
to ensure timely completion, approval and
submissions of orders for all schools.
Tighter contractual relationship with
15
Supply chain issue Current shortcomings/
constraints/inefficiencies Proposed changes Policy implications/objectives
leaving much too little time to develop, trial,
print and deliver new revised titles so they are
available in schools when new syllabus is
scheduled to take effect.
agreement between MoE/ National Textbook
Development Board and publishers).
publishers/distributors to ensure LSM orders
are fulfilled within agreed deadlines.
Textbook shortage in classrooms
Budget constraints and high unit prices result
in serious shortage in most schools. Most
serious impact is poor mother-tongue literacy
in Grades 1-3 leading to poor literacy and
numeracy skills from Grade 4 onwards –
major cause of system inefficiency, repetition
and dropouts right up through system
Focus on ‘flooding’ early years with mother-
tongue literacy/reading materials.
Resources used to support continuation of
Ministry’s Afrila programme, book corners in
classroom, family literacy programmes in
most disadvantaged regions.
National Institute for Educational Development (NIED)
Role Perhaps not as proactive in determining range
and quality of LSMs as it could or should be
and not coordinating textbook commissioning
with curriculum reform.
Too many curriculum changes introduced too
quickly (external pressures on NIED)
Accountable to the proposed National
Textbook Development Board (NTDB) for
coordinating curriculum reform with textbook
publishing and procurement cycle.
NIED has a more arms length relationship
with MoE regarding publishing and
procurement of LSMs.
Textbook (manuscript) evaluation procedures/processes and compliance with syllabi
No fees charged so publishers submit many
unsolicited textbook manuscripts and
textbooks.
Panel members (subject specialists)
independence?
Very little field testing.
Synergy with curriculum reform limited. Is
NIED carrying out research on best titles and
value for money?
Should meet more frequently and/or for
longer.
Publishers submitting titles for evaluation
should be charged fees. Income from these
fees should be used to pay panel members.
Options for new core subject textbooks to be
commissioned through open tender. This
would then allow the result to be named as the
prescribed textbook/s for that subject and
some royalties may accrue to the Ministry.
Possibly report to proposed NTDB and NIED
act as ‘contractors’ to carry out evaluations so
protecting them from undue pressure to bring
about rapid curriculum change. Clear policy
on limiting number of titles per subject grade
listed in the catalogue and requirements
regarding compliance with current syllabi.
Copyright (intellectual property issues)
Many schools extensively photocopying
textbooks because of severe shortages of
printed copies so contravening copyright
laws.
More efficient textbook supply chain should
increase the ratio of textbooks per student.
Eradication of the illegal photocopying
practices.
Enforce existing strict legislation about
intellectual property.
Clear policy regarding requirements of
copyright legislation and possible sanctions
for those who not comply.
Curriculum lifespan of textbooks
Recently the rapid curriculum reform process
has resulted in stocks of new, unused
textbooks being held in school book stores as
it is believed that they are no longer useful for
As referred to in other sections, the whole
curriculum reform process needs careful
advance planning and take into account the
affect on the existing textbook stock. It is
Clear policy directive on how curriculum
reform should be planned and managed with
consideration for the introduction of new
LSMs and the use of existing LSM stock.
16
Supply chain issue Current shortcomings/
constraints/inefficiencies Proposed changes Policy implications/objectives
teaching the new syllabus in that subject
grade.
unlikely that existing complete copies of
LSMs are made redundant as a result of the
introduction of new syllabi particularly in
maths, English and sciences.
Introduction of a book stock disposal policy
for any LSMs made entirely redundant by
curriculum changes or worn out books.
Relationship between publishers and Ministry (including NIED)
Communication difficulties
Some suspicion of excessive profit motive by
MoE staff.
Lack of understanding of each others’ roles.
Distributors’ contracts do not ensure
independence from publishers.
Parties would be responsible to new Board
which would monitor/broker relationships and
ensure no conflicts of interest.
Policy would be to establish new, independent
Board providing policy direction. NTDB
would play a pivotal role in coordinating
sector, monitoring effectiveness of supply
chain, monitoring and policy development.
Overall coordinating unit within MoE
No dedicated logistics/coordinating unit
within Ministry with responsibility for
ensuring all stages and processes are working
in synchronised fashion, progress chasing
problems and delays, actively monitoring
service contracts and contractors’
performance targets, REOs, publishers etc.
The massive increase in the provision of
LSMs justifies the creation of a small
dedicated unit of experienced staff.
Policy priority
Annual Textbook Catalogue, Grades 1–12
General functionality Too many titles per subject grade. Layout
sometimes confusing.
Not enough guidance for teachers on new
titles.
Not available to schools early enough in
school year.
No section for special needs education or
science equipment and materials.
Needs cleansing/purging and redesigning.
Order forms need redesigning too.
New layout should include subject coding.
New rules for publishers/suppliers relating to:
submission of new titles and revisions for
inclusion; availability; delivery times.
Book promotion fairs to coincide with
distribution of catalogue and order forms.
Responsibility for final approval with
National Textbook Development Board
(NIED in agency role?).
Catalogue becomes a key instrument to
determine relationship between MoE and
publishers/distributors mediated through new
National Textbook Development Board.
Status/number of titles per subject grade
Catalogue is difficult to use for the teachers.
Too many titles are old and need reviewing
for relevance and suitability for the new
curricula.
Restrict new titles per subject grade to
maximum of 3
or
Competitive tender for publishers to publish
specific new titles for each subject and grade
New policy will prescribe how this stage in
the supply chain will operate.
Publishers with titles in the catalogue will be
required to organise and fund a programme of
book fairs every year throughout the country
17
Supply chain issue Current shortcomings/
constraints/inefficiencies Proposed changes Policy implications/objectives
No guidance for teachers on strengths and
weaknesses of titles.
level (each with a teacher guide), which
become the prescribed textbook/LSM for that
subject/grade.
Look for regional co-publishing
opportunities/adaptation of existing LSMs to
reduce origination costs and, therefore, unit
costs. Catalogue will contain mini reviews of
all new titles prepared by the evaluators or by
the publishers and endorsed by the evaluators
to assist schools with evaluation.
where inspection copies of new titles will be
available to schools through sets for all cluster
centres (160)
Pricing and VAT Prices on the catalogue are sometimes wrong
or not stated. They appear as publisher’s price
and not as actual purchase price (including
discount). Clarity over whether VAT
included.
Stricter controls of the price and to indicate
the actual purchase price (to be exclusive of
distributor’s discount). This will include
publishers being asked to inspect proofs of the
catalogue prior to it being printed, and
‘signing off’ that each of their prices shown is
correct.
Prices to be the same in every region.
Seek change in VAT status of educational
materials so they become VAT exempt.
All educational publishers with titles in
catalogue in Namibia should have in country
representation.
Policy should ensure that rules applicable to
pricing and discounting by publishers and
distributors are transparent.
Apply Florence agreement re no VAT on
educational materials
Needs of special education Not met in current catalogue particularly in
relation to specialised equipment and
computer software applications for different
disabilities.
Separate or supplementary catalogue required. Policy would ensure inclusive approach and
service.
Science equipment/materials
Lack of clarity about REOs budget for
equipment and materials. Some labs not using
science handbook. Procurement needs review.
Introduce capitation allowance for equipment
and materials. Develop a section for the
catalogue with approved suppliers.
Use tendering process to pre-qualify
suppliers.
Section in catalogue specifically for this core
subject area.
Tendering and contracting distributors
Scope of tender Too many contracts (13) leads to many
different book prices and discounts.
Rationalise scope of tendering to achieve
fewer but bigger contracts with geographic
and price/discount equity across ‘super’
Policy should dictate scope of tender
specification/contract balancing
competitiveness, and unit costs whilst
18
Supply chain issue Current shortcomings/
constraints/inefficiencies Proposed changes Policy implications/objectives
Tender/contracts do not specify in sufficient
detail performance standards leading to
excessive delivery visits and delays to order
completion.
Commercial marketing information not made
available to all publishers.
regions (e.g.3-4 regions in each contract area).
Performance criteria need to be clearer so can
be monitored. Commercial relationship
between publishers and distributors must be
explicit and transparent.
providing commercial opportunities for
smaller, indigenous distributors.
Tendering for distribution contracts and specification
Could conclude from the tender evaluation
records that possibly some collusion took
place between bidders before submitting bids
leading to a possible cartel situation which
excluded smaller companies.
Technical specifications of tender need
reviewing along with contract period (e.g.
minimum 3 years) to strike a better balance
between competitiveness and service quality.
Must specify that tenderers must declare any
direct commercial relationship with
publishers.
Policy will determine key parameters of
tenders and objectives of value for money
whilst ensuring that the smaller local
companies are competing on a level playing
field.
New board to have role in monitoring this
contract for services.
Finance and budgeting
Budgets for LSMs Gap between available budget and cost of
textbook target of 1/student/subject (8)
estimated at US$89 (2004 prices).
Specific LSMs expenditure targets needs to be
set (% of recurrent budget) and ring fenced.
Pro-poor focus on improving early years’
literacy standards.
Policy will commit Ministry/GRN to
sustained support to achieve targets. Linked to
proposed per capita funding formula.
Textbook capitation allowances
Wide variations in regional primary and
secondary allowances.
Not always ring-fenced so some ‘drift’ into
stationery budgets.
No pro-poor policy focus in place. To date
mostly focused on ‘textbooks’ not general
reading materials, building up libraries and/or
book corners for early learners etc.
Standardisation of basis for calculating
allowances.
Develop pro-poor formula which focuses on
early years literacy and takes into account
disadvantage (e.g. no. of
OVCs/remoteness/literacy performance).
Policy will determine formula for calculating
Ministry’s LSMs regional recurrent budget
allocation and ETSIP (pro-poor) allocations.
Linked to PCF formula.
ETSIP funding for LSMs Delayed confirmation of annual ETSIP LSMs
budget means ordering will be out of step
with recurrent budget ordering leading to
duplication.
ETSIP (budget support funds) and recurrent
budget funds merged and used as single LSMs
budget line for determining allocation to
regions taking into account ETSIP pro-poor
focus.
Policy objective to rationalise LSMs budget
lines to make them more transparent.
Apply PCF formula when introduced.
Late payment of invoices Late completion of orders means that invoices
are spread across two financial years creating
underspend/overspend.
Order processing capacity at different stages
needs improving through clear deadlines,
adequate and trained human resources.
Policy will determine timetable and
responsibilities for processing orders within
an agreed supply chain timetable.
School development fund contribution to LSMs
Parent payment for lost books – income to
School Development Fund?
Requirement that % of SDF used to purchase
LSMs. Could create sense of value/ownership
Policy could be hard to implement and may
not be acceptable to REOs and schools.
19
Supply chain issue Current shortcomings/
constraints/inefficiencies Proposed changes Policy implications/objectives
leading to improved care of textbooks.
Ordering and delivery
General System is complex and communication
between parties is sometimes poor.
Rationalisation of delivery schedules to
reduce number of school visits (combine with
stationery deliveries -- could cause delays)
and reduce environmental impact and costs.
Curriculum reform not synchronised with rest
of supply chain cycle leading to delays (and
redundant textbooks in the last year).
Will need to bring whole supply chain cycle
forward by at least 3 months to ensure orders
are completed before end of school year.
Listing in catalogue means publishers have to
guarantee maximum delivery times for their
listed titles following receipt of all completed
orders.
Timetable for introduction of curriculum
changes must be synchronised better with
supply chain cycle to ensure that new LSMs
are in catalogue.
Policy will set out requirements for this part
of the supply chain cycle in terms of required
performance standards
Ordering (school level)
Teachers not trained in evaluating new
textbooks against syllabi requirements.
Errors on the orders (titles, prices). Some
delays by REOs in notifying schools of
capitation allowance leading to tight order
deadlines.
Delays in some schools receiving catalogues
and order forms.
Train teachers responsible for ordering (see
sections above on evaluation of new
textbooks).
Provide them with more information on (new)
LSMs (catalogue reviews by NIED and
inspection copies).
In return for reducing number of titles per
subject grade, publishers required to supply
inspection copies of new titles (with syllabus
guide/checklist) through proposed book fairs
in every region. Integrated into contract with
accredited publishers.
Will benefit small, local publishers who are
currently disadvantaged by not being able to
reach all schools with individual visits.
Policy on new administrative processes and
responsibilities for each stage in the supply
chain.
Processing school LSMs orders
Delays with processing orders, requisitions,
raising orders by MoE leading to delays in
completing school orders.
Paper trail is too long.
Government cash flow constraints cause
delays in issuing orders to distributors.
Revise and simplify supply chain cycle where
possible.
Identify where order processing bottlenecks
are and if necessary redesign
administrative/processing systems and build
capacity to implement.
Policy on new administrative process and
responsibilities for each stage in the supply
chain.
20
Supply chain issue Current shortcomings/
constraints/inefficiencies Proposed changes Policy implications/objectives
Questions over whether capacity of existing
system can cope with planned 600% increase
in volume of textbook orders.
Payments to distributors Long delays causing cash flow problems.
Will become a serious problem with planned
increase in volume of orders.
Could exclude smaller companies from
tendering.
Contracts will allow part payment to
distributors in return for bank guarantees and
compliance with agreed delivery deadlines
Policy to streamline and speed up processing
of payments to distributors in return for
improved textbook delivery performance.
Availability of textbooks from publishers
Delays in the availability of the ordered
LSMs. Publishers do not hold stocks of new
textbooks but print on demand resulting in
delays and high unit prices because of
relatively small annual print runs.
Inclusion in the catalogue will be on the basis
that publishers comply with specific supply
conditions relating to orders from distributors.
MoE could ‘guarantee’ print runs of the main
prescribed textbooks so stocks so bringing
down unit prices.
Policy will indicate performance parameters
and possible sanctions in the event of non-
compliance.
At school level
Assessment/evaluation of LSMs by teachers
Very few inspection copies available
Teachers not trained to evaluate and compare
new titles against curriculum; or to use parts
of ‘redundant’ textbooks to enhance the
limited learning resources.
Pre-service and in-service training of teachers
(jointly with NIED and Association of
Namibian Publishers).
Policy objective.
Also all textbooks must be trialled and have
teachers guides
Book fairs and inspection copies
Currently rather hit and miss.
Likelihood that many schools do not see any
inspection copies of new titles.
See above. A programme of book fairs (3-4
per region) organised by ANP to include all
accredited publishers who are represented in
that year’s catalogue.
All non-Namibian publishers must be
represented by local companies.
Formalised arrangement between ANP, new
Board and MoE and should be a contractual
requirement for all publishers.
Availability of LSMs in the classroom
Well-documented shortage, severe in most
schools caused by chronic underfunding;
particularly critical for early vernacular
literacy learners where the acquisition of
foundation mother-tongue literacy skills is
seriously affected.
Evidence that standards of Grades 1-3
Focus on early years vernacular literacy skills
as the key foundation for acquisition of
second language functional literacy and
numeracy skills. Includes supporting school
as agent for developing reading culture in
local community.
Ensure libraries and/or book corners are
Key focus of policy statement will be to target
resources to improving early years
literacy/numeracy standards.
21
Supply chain issue Current shortcomings/
constraints/inefficiencies Proposed changes Policy implications/objectives
literacy/numeracy teaching are poor leading to
difficulty in acquiring functional English
literacy at Grade 4.
available in all Grades 1-3 classes. Justified
by reducing repeaters/attrition rates (est. cost
c. N$100-200million p.a.) and improved
second language literacy up through system.
Need to be closely articulated with national
language policy and book policy.
LSM stock management Poor or absence of book stock management
system in most schools visited.
Poor monitoring of the book position at
regional level.
Regional/national audit of LSM stocks not yet
complete.
Implement the standardised procedure for
book stock management under the direct
responsibility of the school. Principals and
make returns to REOs.
Large increase in investment in LSMs
requires improved stock control at all levels.
Important part of the LSMs supply chain and
should be part of the policy.
School libraries/book corners/book boxes
Generally poor provision and access for early
years’ learners. Range of vernacular literature
(primers, storybooks, general interest material
etc) v. limited. School libraries poorly
stocked, often not suitable for early learners
and cannot take home readers etc.
All Grades 1-3 should have as a minimum a
book corner/book box stocked with prescribed
vernacular reading materials, posters, flash
cards, wall charts, games etc.
Schools will be required to use their book
capitation to purchase work books for Grades
1-3 and other vernacular reading material.
The pro-poor policy will focus strategy on this
critical group of early learners and focus
resources in a sustained way.
Monitoring and Evaluation systems will be
needed to establish baseline and monitor
standards on annually.
Storage/disposal of obsolete and redundant books
Some school book stores are clogged up with
old LSMs as no disposal policy in place.
Many examples of new books made
redundant by curriculum changes.
Primary schools do not have adequate storage
facilities.
Disposal policy needed to write off totally
obsolete books.
Directive needed for schools to utilize
newer/new books made partially redundant by
curriculum reform.
Include in policy.
LSM lifespan (physical) The official lifespan of a book is five years -
the period between curriculum reviews.
However this is somewhat arbitrary and
depends on the nature of the LSMs and the
number of users.
MoE should develop specifications for
different LSMs which publishers’ products
have to conform to.
Training in basic book care for schools.
Provision of adequate book storage facilities.
Include in policy
Community literacy (adult literacy/parent engagement and support)
Apart from the few pilot family literacy
programmes, schools have no programme to
engage parents (from surrounding
communities) in assisting learners with
vernacular literacy.
No additional support for 20-30% of learners
To use policy to generate a reading
culture/habit school and community
(parents/guardians) need to engage in early
literacy programme.
Clear policy to enable schools with extra
resources to encourage community
Comprehensive policy focus on an integrated
approach to the school and community as
change agents to improve early vernacular
literacy standards.
22
Supply chain issue Current shortcomings/
constraints/inefficiencies Proposed changes Policy implications/objectives
that are OVCs. participation.
Consider scheme to use Grade 12 graduates as
volunteer teaching assistants
OVCs (impact on literacy levels)
Current literacy teaching practice does not
recognise special literacy learning problems
of the 20-30% OVCs in many schools in
Northern regions.
Most OVCs have reduced support from home
situation so slower to acquire literacy skills.
Possible extension of family literacy
programme with increase in vernacular LSMs
for classroom and home.
Pro-poor policy focus on most disadvantaged
regions and learners to improve literacy skills
through increase in publishing of vernacular
materials.
Training, monitoring and evaluation
LSM management information system
No integrated system in place. Basic LSMs
stock take being carried out to establish a
baseline.
New system should be integrated with overall
ETSIP M&E system.
Essential to assess effectiveness of
investment.
Skills training in textbook use, care and asset management
No formal training programme in place at this
time; not include in the teacher education
curriculum
Component 3 of the Phase I of ETSIP
provides funding for.
29
Suggested future supply chain schedule
26
Strengthening the Management of the Supply Chain
The policy will be implemented with assistance from ETSIP for in-country advisory support, on-the-job training,
operational costs and textbook procurement.
The implementation plan acknowledges the need for increased operational and management devolution of textbook
procurement, the strengthening of textbook evaluation and selection mechanisms and the need for a new method of
calculating textbook capitation allowances. The also recognises that such changes must be made gradually and that
effective monitoring and evaluation of implementation and its impact is critical.
The review of the textbook supply chain highlighted several steps and processes in the chain which are not
functioning well resulting in many inefficiencies in the system including late deliveries of LSMs to schools,
inequities in textbook capitation allowances between regions, high unit costs in some cases, wastage due to poor
articulation between curriculum reform and textbook development, publishing and supply.
The Directorate: Programmes and Quality Assurance recognises that, to implement the textbook policy objectives,
to coordinate and manage a more efficient LSM supply chain delivering best value and to accommodate a 500 to
600% increase in textbook value, it will need a dedicated Supply Chain Management Unit (SCMU).
The Unit will enable the Directorate to take a more strategic approach to the planning, coordination and
management of procuring, distributing and safeguarding LSMs; to have the skilled capacity to operationalise key,
new procedures and logistical processes; and to work closely with the other critical Ministry Directorates and
stakeholders and to ensure that training and support is given BEFORE new or re-organised processes are
introduced. Improving communication channels between all supply chain participants should underpin all activities
and these will provide the prime channel through which policy decisions made by the National Textbook
Development Board are implemented.
The SCMU will allow PQA to focus expertise on supporting and proactively managing the supply chain and
coordinating the Ministry’s administrative and financial processes with the other stakeholders in the chain.
The SCMU should become PQA’s key management function for all matters relating to the efficient functioning of
the LSMs supply chain and the interaction and collaboration with the key stakeholders essential to the successful
implementation of the textbook policy objectives.
Terms of reference
To coordinate and manage all participants and processes involved in textbook supply chain operations and
logistics; and HR planning and development.
To monitor all textbook tendering and procurement activity; budgets and expenditure targets; service contracts,
contractors’ performance targets, liaison with regional education offices and publishers; resolving other
problems and supply chain bottlenecks; and implementing and monitoring stock management systems at all
levels.
To negotiate with all key stakeholders on an annual supply chain schedule/calendar which sets out all dates,
deadlines and key responsibilities for each participant in the supply chain.
To prepare annual LSMs budgets against target budgets for textbook provision, training and stocking libraries
and monitor these expenditure targets.
To explore options for advance bulk purchasing of textbooks for core subjects with a view to reducing unit
costs.
To assess the causes of delays in processing invoices from the distributors for payment and make
recommendations to facilitate payments.
To undertake studies and make recommendations into the viability of introducing a textbook rental scheme for
secondary schools and the place of the school development fund in managing and administering any scheme.
To develop, in partnership with NIED and the commercial publishing sector, a human resource capacity
building programme which will include management and technical training programmes for all MoE staff and
teachers involved with the textbook supply chain.
To facilitate, as part of a planned decentralisation programme, the delegation of authority and responsibility to
regional education offices for processing school textbook and other LSM orders, the issuance of purchase
orders and the processing of payments to suppliers.
To provide the Secretariat support to the proposed National Textbook Selection Board.
27
SCMU: Proposed roles and responsibilities
The Supply Chain Management Unit will:
coordinate and manage all participants and processes involved in textbook supply chain operations and
logistics;
have responsibility for HR planning and development (coordinated with the ETSIP capacity development
programme)
review order processing capacity and the effectiveness of current administrative systems at all levels;
identify bottlenecks and capacity issues;
recommend simplification and improvements with particular reference to the planned large increase in size and
value of orders and
provide the Secretariat support for the proposed National Textbook Development Board.
Management responsibilities will include:
progress chasing;
monitoring tendering and procurement activity;
actively monitor budgets and expenditure targets;
monitor service contracts and contractors’ performance targets (including value for money, quality issues,
processing of orders, delivery deadlines);
liaise with regional education offices and publishers;
resolve other problems and supply chain bottlenecks; and
implementing and monitoring stock management systems at all levels.
The Unit will negotiate, in advance with all key stakeholders, an annual supply chain schedule/calendar for the
following year which sets out all dates, deadlines and key responsibilities for each participant in the supply chain.
The schedule will aim to ensure that all textbooks and other LSMs are in schools before the end of that school year
in readiness for use in the next school year. An important resource will be the comprehensive Supply Chain
Operations Manual which will become a key management and coordination tool available to all stakeholders and
used as a training resource for personnel at all levels.
Unit staff, working with other relevant directorates, will also:
prepare annual LSMs budgets against target (ETSIP) budgets for textbook provision (using agreed norms); and
be responsible for monitoring these expenditure targets;
prepare procurement plans and schedules,
review order and invoice processing procedures;
implement new systems where necessary; and
carry out studies into the viability of introducing a textbook rental scheme for secondary schools and the place
of the school development fund in managing and administering any scheme.
It will also be responsible for the development (in partnership with the publishing sector) of a human resource
capacity building programme which will include management and technical training programmes for all Ministry
staff and teachers involved with the supply chain. These activities will be coordinated with NIED and undertaken in
collaboration with the Association of Namibian Publishers.
This will include training for:
teachers on the effective selection and use of textbooks;
administrators/teachers on the care and maintenance of textbooks and other LSMs; and
school communities on textbook rental schemes and assistance to disadvantaged students.
SCMU: Organisational Structure
The Unit will be linked to one of the existing divisions. It is proposed that Unit Staff will be seconded/assigned
from existing divisions of the Directorate; from other Directorates in the MoE (e.g. NIED); and/or from current
supernumerary staff in the MoE or other ministries. Unit operating costs will be met out of the ETSIP budget for
the first 3 years.
The unit will have close links with NIED, procurement staff in the Directorate: General Services.
28
Establishment of the new SCMU will need to take place as soon as Cabinet approval has been given for the
Textbook policy and agreement reached on staffing establishment and recruitment. A team of approximately five
people will be required: a unit head, two project officers and two administrative support staff.
The diagram below shows how the Unit could be accommodated within the Ministry’s current organisational
structure:
Proposed Organisational Structure for the Textbook Supply Chain Management Unit
NIED
(Directorate)
General Services
and Finance
Directorates
(procurement, etc)
Regional Education Offices
Circuit
Cluster
School
MINISTER
Permanent Secretary
Programmes and Quality Assurance Directorate
Diagnostic, Advisory and Training Services Division
Research & Information Division
Supply Chain Management Unit
Staff: 1 Unit Manager; 1 procurement / publishing officer; 1 logistics officer;
2 admin staff
Secretariat to Textbook Development Board
National Textbook Development Board
Audit Standard & Quality Assurance
Other divisions
Under Secretary Formal Education/
ETSIP Programme Manager
Advisory/Coordination function
_______ Operational function & Reporting