UNIVERSITY OF BOLTON
AN INVESTIGATION INTO THE TEACHERS PERCEPTIONS OF PERFORMANCE APPRAISAL SYSTEMS IN PUBLIC SECONDARY SCHOOLS: A CASE STUDY OF SCHOOLS IN LILONGWE CITY.
BY
ALEXANDER KAZOMBO MWALE
STUDENT (1309114)
A RESEARCH STUDY SUBMITTED IN PARTIAL FULFILMENT OF THE REQUIREMENT FOR THE AWARD OF A CREDIBLE MASTERS DEGREE IN PUBLIC ADMINISTRATION FROM THE UNIVERSITY OF BOLTON
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Abstract
The introduction of performance appraisals through the performance management policy in Malawi has not been as effective as intended. There were suggestions that the policy was not welcomed thus has minimal impact on the teaching service in secondary schools in Malawi. The purpose of this study was to investigate the perceptions of teachers in order to understand the implementation of the policy and how to improve it.
The main findings were that the policy had major problems that include: the lack of ownership of the policy by teachers; poor use of the information tool; inability to utilise rewards; and poor leadership. The study observed that cultural considerations and links to reward would improve the appraisal process.
In conclusion, the policy makers need to ensure consultations of stakeholders are fully utilized and results made publicly available; fully engage in sensitization campaigns; and monitor the policies implementation.
DECLARATION
I certify that this work has neither been accepted in substance for any other Masters degree nor is it concurrently submitted in candidature for any other degree other than Masters in Public Administration at the University of Bolton
Candidate’s signature______
Candidate’s Name: Alexander Kazombo Mwale
Statement of originality
The concept, research organization and writing of this study entirely belong to the candidate Alexander Kazombo Mwale. The study has been conducted at the University of Bolton under the supervision of Dr Rebecca Ward and Dr Ida Mbendera. All quotations are distinguished and identified by reference.
Candidate ’s Signature______
Supervisors Signature______
Supervisors Signature ______
dedication
This work is dedicated to my loving wife Seba and my beautiful daughter Amelia
Acknowledgements
I would not have pursued this Masters degree if it weren’t for my loving mother, Nellia. Your love is unparalleled and I appreciate the nudges I receive from you that direct me to the right directions in life.
To my father I thank you for the guidance and support.
Special thank you to my two supervisors Dr Ida Mbendera and Dr Rebecca Ward
List of Abbreviations
DPSM : Department of Public Service and Management
DEM: District Education Manager
DEO: District Education Officer
FPE: Free Primary Education
HOD: Head of Department
MoEST: Ministry of Education, Science and Technology
NESP: National Education Sector Plan
Abstract...... i
Declaration...... ii
Statement of Originality...... iii
Dedication...... iv
Acknowledgements...... v
List of Abbreviations...... vi
1.1.0 Introduction...... 1
1.2.0 Background Information…...... 1
1.3.0 Problem Statement…………………………………………………………………2
1.4.0 Objectives...………………………………………………………………………...2
1.5.0 Questions.…………………………………………………………………………..2
1.6.0 Proposition...... …………………………………………………………...3
1.7.0 Significance of the study...... 3
1.8.0 Education in Malawi: Brief Profile...... 3
1.8.1 Government Education Agencies...... 3
2.0.0 Literature Review……........ 5
2.1.0 Introduction...... 5
2.1.1 Sources of Literature...... 5
2.2.0 Definition of Key Concepts...... 5
2.3.0 A Background for Performance Appraisals...... 6
2.3.1 Earlier Attempts at Performance Management in the Malawian Public Sector...... 8
2.4.0 Questions...... 9
2.5.0 Criticism of Performance Appraisals...... 10
2.6.0 Performance Appraisals and Rewards...... 13
2.7.0 Performance Appraisal Methods...... 14
2.8.0 Common Errors in Performance Appraisals...... 16
2.9.0 Conclusions...... 16
2.10.0 Theoretical Framework...... 17
3.0.0 Project Plan and Methodology……………………………………………………....18
3.1.0 Introduction...... 18
3.2.0 Research Design………………………………...... 18
3.3.0 Research Philosophy...... 18
3.4.0 Data Collection...... 20
3.5.0 Study Site…….....………………………………………………………………….20
3.6.0 The Sample and Sampling Technique...... 20
3.7.0 Data Analysis Methods...... 20
3.8.0 Resources…………………...... 21
3.9.0 Constraints……………………………………...... 21
4.0.0 Data Presentation...... 22
4.1.1 Introduction...... 22
4.2.0 Profile of Interviewed Respondents...... 22
4.3.0 Research Findings...... 22
4.3.1 Awareness of the Policy...... 22
4.3.2 Implementation of the Policy...... 23
4.3.3 Reactions to the Performance Appraisal...... 24
4.3.4 Cultural complexities and the Performance Appraisal...... 25
4.3.5 Performance Appraisals and Rewards...... 27
4.3.6 Factors for Poor Implementation...... 28
4.3.7 Solutions to the Problems Mentioned...... 28
4.4.0 Summary...... 30
5.0.0 Data Analysis...... 31
5.1.0 Introduction...... 31
5.2.0 Understanding of the Performance Appraisals...... 31
5.3.0 The Cultural Complexities of Performance Appraisals...... 32
5.4.0 The Link between Performance Appraisals and Rewards...... 33
5.5.0 Monitoring (Follow ups)...... 34
5.6.0 The Role of Leadership and Management...... 34
5.7.0 Summary...... 35
6.0.0 Conclusion...... 36
6.1.0 Introduction...... 36
6.2.0 Summary of Keys Findings...... 36
6.3.0 Recommendations...... 37
6.4.0 Areas of Further Study...... 37
7.0.0 References...... 39
Appendix 1: Guiding questions used for data collection (Semi Structure Interviews)...... 46
Appendix 2: Introductory Letter...... 48
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Chapter one
InTroduction
1.1.0 Introduction
This chapter provides the background and rationale for conducting the study. It describes the performance appraisals and the reasons they are conducted by the Ministry of Science and Technology (MoEST) in Malawi among Secondary schools. This chapter provides: detailed background information; problem statement; the objectives; research questions; and the significance of the study.
1.2.0 Background Information
As part of the National Education Sector Implementation Plan (2009) the Malawi government, through the MoEST, committed to reform inspection of educational systems in order to improve performance and service delivery. The Malawi education performance assessment framework (2013) discovered satisfactory performance in this reform with 120 secondary schools and 58 private institutions monitored between October and December 2010.
However the same framework argues that although there was a large increase in the inspection of primary, secondary and tertiary institutions, no inspection reports were published or released and there is no evidence of inspection having an impact on the quality of teaching and learning. The Teaching Service Commission (TSC) was already aware of the inefficiencies of the inspection system and suggested it start considering performance appraisals to be done by head teachers, heads of departments as well as inspectors in order to assess teachers for promotions (Kadzamira, 2006). The performance appraisals were eventually part of the National Education Sector Plan (NESP) (2009) as introduced by the government through the Department of Public Service Management (DPSM) (2008).
However, the findings in the Malawi Governments Public Service Reform Commission report (2014) portray a negative picture of the state of affairs in terms of performance management. The commission, headed by the Vice President Saulos Chilima, has discovered that there is a laxity in delivery of public services due to the lack of a robust, result oriented performance system linked to individual work plans that are related to organisational performance targets that are derived from the national development plan. As a civil servant working for the Ministry of Education, Science and Technology (MoEST) in one the public schools, the researcher has the privilege of observing some of the difficulties in implementing the performance management system introduced by the DPSM (2008). At Bwaila Secondary school where the researcher is posted, it is a requirement for teachers to develop their own work plans through schemes and lesson plans and sign a performance appraisal agreement form. At the end of every academic year, performance assessment exercises are supposed to take place. In those periodic meetings, a supervisor and subordinate are meant to discuss progress on what was agreed upon in the performance agreement and the targets achieved. The exercise at Bwaila Secondary School has only begun but implementation has ended at signing appraisal forms. The lack of implementation is therefore a worrying problem that is worth investigating.
1.3.0 Problem Statement
Lawler et al (2012) states that, in most jobs the only way to determine how well somebody is performing is to use a performance appraisal system that measures the performance of individuals. However, according to Pulakos (2004:1), performance management systems are not viewed as the key in achieving individual and institutional goals by both employees and employers. Instead, they are seen as a necessary evil that should be minimised. This shows a lack of consensus among literature which makes this an interesting and important study.
The current performance appraisals are meant to foster career development, improve quality of teaching and learning and motivate employees. However, Matsuda (2004:1) observed that in Malawi’s education sector, career paths for teachers are not firmly established which makes teachers feel disillusioned and thus not consider performance appraisals important. Lawler (2003) in Lawler et al (2012) argued that tying rewards to appraisal systems was likely to lead to a more successful performance management system. However, as there aren’t any clear rewards that can motivate teachers (Marphatia et al, 2010), this reflects a poor implementation of performance appraisal systems.
There is an apparent need to investigate the current performance appraisal systems available in public schools and assess whether they yield the desired results and if not find out why such is the case.
1.4.0 Objectives
The rationale of this study is to improve the performance appraisal system used in the education sector.
1. To assess the policy users understanding of the performance appraisal system
2. To investigate the perceptions of employees towards the appraisal system
3. To understand the link between performance appraisals and rewards
4. To assess the difference in policy implementation among public schools
1.5.0 Questions
Arising from the above objectives, this research study aims to answer the following questions:
1. What is the teachers understanding of the performance appraisal system that is used in secondary schools?
2. What is the perception of employees towards the appraisal system?
3. What is the link between performance appraisals and rewards?
4. How do public schools differ in their implementation of the appraisal system?
5. How does the difference in implementation impact the performance management policy?
1.6.0 Proposition
The introduction of performance appraisals through the performance management policy was meant to facilitate an improved and efficient civil service that includes the MoEST (DPSM, 2008). The framers of the policy and indeed the framers of the National Education Sector Plan (2009) believed that their recommendations would be followed as planned. This may not be the case because implementation of performance management reforms has always had difficulties in African countries such as Malawi due to the incompatibility of reforms to: the cultural perceptions of employees; rewards; and the systems of the African public service. The lack of cultural considerations and links to reward in reforms are one of the main factors that have brought about a lack of motivation and negative attitudes towards performance management reforms (Tambulasi, 2010).
1.7.0 Significance of the study
This study will assist policy makers and management at ministerial, divisional and institutional level of the actual effects the appraisal system has on employee performance and the quality of education delivered. It will also help these stakeholders to identify whether this system needs to be maintained, strengthened or removed.
The study therefore has significant policy implications for the ministry of education and the government of Malawi.
1.8.0 Education in Malawi: Brief Profile
The country was established in 1891 as the British protectorate of Nyasaland. It became the independent nation of Malawi in 1964 under the leadership Dr Hastings Kamuzu Banda who ruled for three decades under a one party rule system. Before Independence, in 1962, an Education Act was passed to provide for education for persons within Malawi. This act remained in use for over 50 years until government proposed a new Education Bill in 2010 (Malawi Law Commission, 2010). The required change, through the Education Bill, arose from the view that the Education Act had lost its relevance to current social needs and dynamics that include the job market.
In 1994 the country held its first democratic elections and saw the rise in human rights awareness (The World Factbook, 2013). This included the right of education for all and this culminated into the free primary education (FPE) policy that was enacted to support the constitutions directive that all persons need to have at least 5 years of education (N’gambi, 2010). The FPE and other educational reforms made in 1994 have only recently been provided a regulatory framework with the recently passed Educational Bill of 2013. The Education Bill also aims to ensure better quality service in education through inspections and formalised decentralisation of school management and this has led to a focus on teacher performance (Malawi Law Commission, 2010).
1.8.1 Government Education Agencies
The Ministry of Education, Science and Technology (MoEST) is responsible for primary and secondary education along with teacher training. MoEST also coordinates with the Ministry of Labour for technical and vocational training and the Ministry of Gender for pre-school education. This coordination is currently weak and this affects delivery of educational services (Ngambi, 2010).
The MoEST has currently embarked on a decentralisation process in order to share management, planning, coordination and financing services with the regions (also known as divisions) and districts (Malawi Decentralisation Policy, 1996). The divisions and districts, within the decentralisation process, are run by division education managers (DEM) and district education officers (DEO) whose responsibilities relate to running secondary schools and primary schools, respectively. The responsibilities include all human resource matters as well as supplies of teaching and learning materials (Ngambi, 2010).
Chapter two
Literature review
2.1.0 Introduction
This chapter will review literature on performance appraisals as a tool for assessing performance as well as reviewing how it has been used in the Malawian public service. Apart from providing a background to the introduction of performance appraisals, the chapter will review some of the criticisms that have been levelled against performance appraisals and relate them to the questions that this research study is aiming to answer.
2.1.1 Sources of Literature
The review has utilised literature from a variety of sources. These sources include books, online articles, academic journals, policy documents, conference reports and working papers. Literature on the use of performance appraisals in Malawi has been difficult to acquire due the fact that it is a relatively new concept.
2.2.0 Definition of Key Concepts
2.2.1 Performance Appraisal
Dessler in (2008) in Toppo and Prusty (2012) defines performance appraisal as a tool that is used to evaluate an employee’s performance in relation to performance standards.