Curriculum

Development
An Introduction

This guide is aimed at EU staff working in country Delegations. Its purpose is to help education
task managers without Education background, in situations where curriculum reform is a
major pillar of an overall reform process and/or a particular focus of support. It is intended to
provide a brief overview of key issues, steps in a reform process and the frequent problems
encountered in a curriculum reform programme. It concludes with ways in which the EU can
add value to the process. This short guide is NOT a comprehensive treatment of curriculum
development: it is intended as a brief and broad introduction to enable those that are neither
education experts nor curriculum specialists to be better able to participate meaningfully in a
curriculum reform process. It is aimed more at helping ask the right questions rather than
provide the right answers.

DEVCO B4 Education discussion paper

December 2014

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INTRODUCTION

The Curriculum is at the heart of the education process: it sets out what is to be learned, and how
and when it is to be taught. It underpins all other parts of the system: it guides the day to day
experiences of the classroom, it forms the basis for teacher training programmes, the content of
textbooks and other materials, it determines how learning is assessed through the examinations
systems, how standards are developed and how performance is monitored through school
inspection and supervision systems. The curriculum is a major determinant of what graduates from
the education system bring to the world of work. An education system’s capacity to effectively
contribute to national social and economic development is therefore shaped by the curriculum: are
the right skills, competencies, knowledge and attitudes being developed to drive national progress?

Why do we embark on curriculum reform? The curriculum is rarely static, it undergoes regular and
almost constant change, matching new policies and demands with new descriptions of what is
taught and how. Periodically, countries may embark on a major reform, where the curriculum is felt
to be outdated and out of line with emerging economic and social needs. Typically this will come in
response to a shift in economic and labour market policy that point in a new direction; moving to a
knowledge economy and becoming more competitive globally in an increasing technological world
for example. It may also result from evidence that learning outcomes are low (though this may not
be the fault of the curriculum), a political decision (on national language policy for example, as in the
case of Rwanda), or a major societal change (e.g. the Arab spring, or reconciliation after conflict).

Effective delivery of the curriculum relies on other parts of the system: a well-structured and
relevant curriculum itself is no guarantee of the desired learning outcomes. Teachers require the
appropriate skills, combined with other resources to enable effective learning. Curriculum reform
needs to also to include reform of teaching and learning materials, re-orienting and preparing
teachers, and changes to how learning is assessed.

This primer covers the following topics:

o A brief overview of some key curriculum development issues
o The key steps involved in large scale curriculum reform, from conceptualisation,
development, introduction and evaluation
o Some of the frequent problems associated with developing and delivering the curriculum
o What the EU as an external partner can bring to the curriculum reform process
o Provide some wider references/links for further information and ideas

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A BRIEF OVERVIEW OF SOME KEY CURRICULUM AND CURRICULUM
DEVELOPMENT ISSUES
THERE IS NO BLUEPRINT!
The curriculum and its development can be a highly political issue. Choices about what is - and what
is not - taught is frequently determined by authority higher than the education sector itself.
Religion, politics and political history, ethnicity and language find expression through the curriculum.
Technical staff are often left with the responsibility to make it happen: to determine how it is
delivered and when in the education cycle is the most appropriate time to introduce particular
subjects, concepts and skills. The decision to reform the curriculum is likewise often driven by forces
outside the education sector. This may be an increased policy emphasis on the skills for a new vision
of the economy. The decision may also stem from regime change; a new government wishing to
signal change from a previous regime either as a sign of progress and modernity, or equally
conservatism and reaction.

Curriculum reform is often part of a much broader educational reform, and good curriculum reform
involves concurrent reforms in the closely related areas of teacher training, textbooks production,
school inspection and supervision, as well as examination and assessment. The importance of this
systemic alignment (see the Quality of Education, Education Briefing Paper, European Commission
Oct 2013) is described in more detail below.

In CHILE in 1996, a new national curricular framework was The substantial literature on
established to be implemented at the school level. The government
curriculum tells us one thing: there is
created voluntary Plans and Programs which was more traditional
no one single way to approach
to cover specific content for those schools who did not want to use
curriculum design and development.
their own curricula. In 2001, more than 80% of schools were using
this national Plans and Programs. The curriculum has been updated
The briefest scan of the literature
several times since and Chile is currently in the process of
reveals differing approaches. There
implementation of a new curriculum for all education sub-sectors
including technical/professional training (last updates for upper
are widely differing views on
secondary planned for 2018). An important aspect of this latest
revision is the addition of learning standards for students. curriculum content – what should be
taught and learned, and how it should
http://curriculumenlinea.mineduc.cl/sphider/search.php?query=&t_b
usca=1&results=&search=1&dis=0&category=10
be taught and learned – as well as
how the curriculum should be constructed, and expressed. Thus curriculum, and the way it is
constructed and delivered, are always context specific. In fact, one key lesson that emerges is the
risk of importing or imposing curriculum models from elsewhere. What works in one situation may
not work in another. The process of developing a national curriculum is important in building
ownership. What we can get from looking at the literature are examples of good practice – some
patterns and truths emerge, as do common faults and failings that need to be avoided.

There are no hard and fast rules regarding timescales. The development of the new lower secondary
curriculum reform in Uganda, from which some of the material for this note is taken, is scheduled to
take four years. The development stage was preceded by a substantial period of analysis after which
there was a long gap during which finances and contracting of support were secured. Actual
development activity started over three years after the analysis! It is not unrealistic to think of a five
year cycle from the time the need to reform the curriculum is first mooted to seeing the result in
schools.

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SOME KEY TERMS

Curriculum A curriculum is the ordered selection of learning content and experiences

which are developed for all learners to meet agreed national values and
aspirations. The curriculum sets out the objectives of the education
system. In simple terms it prescribes what is to be achieved.

Syllabus The syllabus sets out the specific details and programme of what is to be
taught and assessed at defined stages of schooling. The syllabus sets out
how the curriculum is to be delivered. It is what teachers use to plan and
deliver lessons. It provides the operational details of the curriculum.
Competency- A competency based curriculum is one that is focussed on learners
based curriculum acquiring competencies to apply knowledge, rather than knowledge itself.
The outcomes are what pupils can do.

Outcome-based Specifies what we expect a pupil or student to know or be able to do after

curriculum a period of study. Outcomes may include competencies, or they may just
relate to knowledge.

MODELS OF THE CURRICULUM

There are countless different actual models of curriculum. This is inevitable as curriculum is specific
to national or local context - driven by individual education policies to meet prescribed educational
goals. The model of curriculum will reflect the broader, underlying structure of the system through
which control of the curriculum is established. Some countries use a highly centralised curriculum,
where there is limited discretion allowed in the way it is delivered by schools and teachers. This
model is appropriate where resources are limited and where the teaching force is not so highly
skilled, educated or motivated. A higher degree of prescription is often required in such contexts. At
the other extreme is a more liberal approach, where significant discretion is given to schools and
teachers in what and how they teach within general guidelines. This requires higher capacities with
schools and teachers.
This debate is often polarised into two basic models, with the chosen approach often lying at some
point in between: a blend of central control and local autonomy. Two descriptions are shown on the
next page: Product or Process and Academic or Comprehensive. Thirdly we look briefly at the
concept of the Competency Based Curriculum.

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 THE PRODUCT AND PROCESS MODELS OF CURRICULUM

ACADEMIC VS COMPETENCE BASED CURRICULUM

A key debate around curriculum is the balance between what is often termed an academic
curriculum that focusses largely on specific subject knowledge and a more comprehensive
curriculum that actively promotes the development of broader competencies, such as problem-
solving, initiative, and creativity. There is often a real tension between the desire to achieve very
direct and measurable outcomes such as basic literacy and numeracy (particularly in the context of
current concern around learning outcomes) and the wider skills and competencies required by a
modern, flexible knowledge-based economy. A good, balanced curriculum will achieve both, but
success requires high levels of teacher skills, diverse classroom approaches and substantial
resources.

ACADEMIC COMPETENCE BASED

CURRICULUM CURRICULUM

Teacher centred, high subject content, focus on Learner centred, promotes skills and
knowledge competencies as well as knowledge

 IQ scores/test results  Motivation to learn

 Literacy and numeracy  Creativity and initiative
 Specific subject knowledge  Independence and self confidence
 Short and longer term outcomes  General knowledge
 Longer term outcomes

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A COMPETENCY BASED CURRICULUM
A competency based curriculum is one in which learners develop their understanding in ways in
which they can apply this in practical situations. A competency based curriculum goes beyond
simple recall of information: the focus is on competencies, such as communication, judgement,
analysis and problem solving. These are often developed through traditional subjects: language,
maths, science, history for example. It promotes what are termed higher order skills. Three basic
processes are involved:

Identifying the Setting learning Developing an

general objectives within approach to
competencies that subject areas that literacy and
are desired; e.g. incorporate focus numeracy that
problem solving, on levels of promotes
critical thinking. competencies competencies.

The link below shows Peru’s curriculum framework as it shifts from a knowledge-based to a
competency based curriculum. http://www.minedu.gob.pe/p/marco-curricular-2da-version-
para-el-dialogo-abril-2014.pdf. This places a stronger emphasis on learning assessment
especially in primary education. For the first time, regional curriculum proposals could be
developed to meet specific regional needs and circumstances (e.g., social, cultural, labour-
related) in addition to the curriculum framework. The process was highly participatory, all
citizens were invited to comment on the proposed framework during a two-month period.

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EXAMPLE: THE COMPETENCY BASED CURRICULUM IN NEW ZEALAND

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RENEWED FOCUS ON BASIC SKILLS: THE HEART OF THE CURRICULUM
There is increasing concern that, despite substantial increases in enrolment at basic levels of
education (principally this means primary, but often includes pre-primary and junior/lower
secondary), far too many children are not learning. More and more evidence suggests that in many
countries a large proportion of children fail to attain even minimum standards of literacy and
numeracy. On completion of primary school, they do not have the basis on which subsequent
learning relies. There is a renewed urgency that ALL children should actually learn, and ensure that
the curriculum – at its very least – delivers basic literacy and numeracy to all children. This urgency
has been very well summarised in the latest UNESCO EFA Global Monitoring Report (2013/14).
Central to the drive for improved quality is the curriculum: what is it that needs to be taught and
learned to ensure all children at least master the basics of literacy and numeracy? This is arguably
the key message for primary curriculum developers and countries' curriculum reform agendas. Two
key elements that underpin this drive, and are fundamental to curriculum reform, are the language
of instruction and a curriculum that is achievable within the resources available.

Policy makers should ensure that the early grade curriculum focusses on securing strong foundation skills for all, is
delivered in a language children understand and is backed with appropriate resources. It is important that curriculum
expectations match leaners’ abilities, as overambitious curricula limit what teachers can achieve in helping children
progress.
UNESCO GMR 2014 (p303)

THE KEY STAGES INVOLVED IN LARGE SCALE CURRICULUM REFORM

A NEVER ENDING PROCESS
The process of developing and delivering the curriculum is continuous. Healthy education systems
are characterised by constant change: the relentless quest for improvement and excellence. Much of
this change is small scale: teachers striving to improve their lessons, schools trying to improve the
learning experience, local level education authorities seeking ways to improve standards,
governments adapting and refining policy. New ideas, guidelines, books and other resources
constantly come into the education system to improve the delivery of the curriculum. This process of
change is a response to changing knowledge, understanding and belief of what is working and what
is not.

Periodically, all countries undertake major revisions of the curriculum. In some countries this is
routinely done, in others it is the response to a felt need for change. This can be political (a new
government or regime), a sense that the curriculum is out of date and does not match new thinking
and policies – that it needs to be brought into line with ideas of a modern economy, or the
curriculum fails to sufficiently include certain groups (e.g. ethnic groups and minority language
speakers).

In April 1994, the newly elected South African government inherited a racist, divisionary, and conservative curriculum. It
needed a major reform to help move the country forward in terms of reconciliation and nation-building, which in turn
required a new philosophical and pedagogical approach to education. The primary school curriculum in South Africa
was revised several times during the 1990s and Curriculum 2005 emerged, “characterised by abstruse language and a
host of new concepts for schools and teachers to digest” with virtually no content. The 2012 National Curriculum

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 Statement Grades R-12 is the current revised curriculum strategy, which includes the national Curriculum and
Assessment Policy Statements (CAPS) (akin to syllabi) that make the curriculum more accessible and effective for
teachers. Every subject in each grade has a comprehensive and concise CAPS, which details what content teachers
ought to teach and assess on a grade-by-grade and subject–by-subject basis. National Curriculum Assessment guidelines
are prepared for teachers to provide them with specific information on assessment for a particular subject. The
Department of Basic Education has a five year plan to support teachers, which includes in-service training.
http://www.unisa.ac.za/cedu/news/index.php/2012/06/the-south-african-schools-curriculum-from-ncs-to-caps/

Currently, some of the major influences of curriculum reform are concerns over low levels of
learning, changes in views on the language and methods of instruction, recognition that the
curriculum is too academic and not sufficiently aligned to the world of work.

THE FIVE STAGES OF CURRICULUM CHANGE WITH INDICATIVE TIME SCALES

This section looks at the typical sequence of events in the first stages of the curriculum reform
process, illustrated on the right side of the diagram below.

ANALYSIS –
Decision to embark on understanding 6-12
major reform what works and months
why

3-6
continuous EVALUATION –
Monitoring the DESIGN – months

delivery and establishing the

learning curriculum
achievement framework

Growing concern over

relevance and learning

Textbook Teacher
Development Training
tt
continuous
DEVELOPMENT –
IMPLEMENTATION – defining the details of 24-36
Delivering the curriculum what is to be taught, months
in all schools how and when

Inspection & Examination

Supervision Reform
Reform

STAGE ONE: ANALYSIS

This initial stage involves understanding the current curriculum, its appropriateness to wider
development and education policy objectives. During this stage it is important to build an
understanding on how well the curriculum is being delivered, where the drivers of change are

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coming from, as well as where resistance to change might lie. A sound understanding of the
institutional context is essential: which groups, organisations and entities exert influence on the
curriculum and its delivery? How well do they work together? What challenges do they face?
Initial decisions to revise the curriculum are frequently based on changes in educational policy that
respond to broader national economic and social development policies. Typically these may include:

 New national visions, perhaps from a change of government, particularly around skills and a
competitive, knowledge economy
 Concern that the curriculum is out-dated, both in terms of what, how and who is taught - more
and more children are in now school
 Concern at low levels of learning, especially literacy and numeracy
 New thinking about language, pedagogy and inclusion

This stage is important in establishing an

evidence base. It is important to think about UGANDA’S NEED FOR CHANGE
"The existing curriculum (in common with that of many
the curriculum in its broadest sense: not just
countries that are either developing or in transition) is a
the curriculum statements and documents (the static one in which learners, driven by the need to succeed
curriculum framework, the content including in a high-stakes examination, are forced to learn a mass of
knowledge that is largely abstract, fact-centred,
syllabi) but the closely related areas (the decontextualized and irrelevant. The deep conservatism of
“family”) of teachers and teaching, teaching the curriculum which has remained unchanged except in
small detail for some 30-40 years contrasts dramatically
and learning materials and resources, the with the rapidly changing demands made of the 21st
school environment and assessment and Century workforce. The challenge is to create a curriculum
examinations. This stage is also important in that builds metacognitive abilities and skills so that
individuals–and the country–are better placed to adapt to
building consensus around the need for and the changing workplace and their changing roles in
direction of reform. Getting the buy-in of key society”.
stakeholders, including most importantly the (World Bank, Uganda 2008)
cross-section of government units and departments with a core interest in the curriculum (see the
later reference to the curriculum family), higher education institutions, representatives from the
world of work, as well as key politicians and bureaucrats, will strengthen understanding and
commitment to the process. It is particularly important to involve teachers and their unions, as well
as parents, as the understanding and support of both is vital for effective implementation.

KEY QUESTIONS FOR ANALYSIS

 IS THE CURRICULUM FIT FOR PURPOSE? How does the current curriculum match up to
present policy commitments and strategic objectives? How well is it expressed in terms of
learning outcomes; how it should be taught?
 WHO LEARNS AND WHO DOES NOT? Are there significant differences in how the existing
curriculum benefits different groups depending on their ethnicity, language, location, social
and economic status, gender, and religion? Evidence is needed so that existing biases can be
addressed in the design and development process.
 WHO DOES WHAT AND HOW? Who has overall responsibility for the curriculum? Which
other entities exert influence? An institutional review of key departments will help assess

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 the extent they are fit for purpose and what capacity building and other resources are
needed for them to be able to drive and sustain a curriculum reform process.
 WHAT DO KEY STAKEHOLDERS FEEL ABOUT THE CURRICULUM? It is very important to map
who the key stakeholders are, determine how they may be engaged and ensure that they
are included in both the analysis and subsequent stages. A stakeholder analysis therefore
should be undertaken at this early stage, examining each’s interest, motivations and
influence. This helps understand who will support and who will resist change.
 WHAT IS THE COST OF REFORM? Many attempts at curriculum reform get significantly
delayed and are only partially successful because the full costs are not estimated at the
start. Effective curriculum reform is a broad process, and the costs are not just those of
developing a new curriculum: there are major costs associated with materials development
and production, teacher training and assessment reform that should be considered in the
initial stage of reform.

INSTITUTIONAL ANALYSIS
A key part of the analysis stage is assessing the capacity of various parts of the system to
undertake reform. The next section illustrates how curriculum is at the centre of other key functions
that support its delivery. It is important to consider the curriculum in this broader way, and assess
and plan comprehensively to include all relevant agencies involved in making the curriculum work in
practice. It is wrong to think of curriculum development as being the sole responsibility and
prerogative of curriculum development departments: to be effective it has to involve other
members of the “family”.
 Institutional reviews and needs analyses. This should not be restricted to the curriculum
development department alone, but needs to consider the wider “family” – those involved in
the textbook cycle (including designers, writers, publishers, procurers, etc.), teacher training
institutions and in-service training providers, teacher unions, inspectors and school supervisors
(e.g. regional/district officers) and, most importantly, examination and assessment institutions.
Schools and school authorities, such as Management Boards or Parent Teacher
Associations/Councils are also important.
 From this will inevitably emerge an immediate need to build capacity to undertake the reform.
Training needs analysis should be considered for key personnel who will be involved in the
process, including subject specialists and materials writers.

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THE CURRICULUM “FAMILY”

PEDAGOGY MATERIALS
What is the dominant style of teaching? What's the current status of textbook quality
What are the levels of teacher knowledge, and supply?
skills and competencies? How will teaching and learning materials be
How can they be supported to deliver a provided for the new curriculum?
new curriculum?

CURRICULUM
ASSESSMENT AND EXAMINATIONS THE SCHOOL ENVIRONMENT
How is learning assessed? How might the conditions in schools limit
curriculum delivery?
Are examinations well aligned to the
curriculum? This should include class size, pupil teacher
ratios, infrastructure
Do examinations determine what is taught?
Is school leadership and accountability
What changes need to take place? strong enough to promote change?

STAGE 2: DESIGN
STRUCTURE TO GUIDE THE REFORM
Getting the right structure in place to ensure appropriate oversight and coordination is a vital early
task. This needs to be inclusive and well communicated. There are usually three basic levels:
 Consider the formation of a high level steering committee with broad representation. ToRs
should reflect its strategic, oversight and executive role. Its core role is to take key decisions
based on recommendations from technical and other levels, ensuring that what is being
proposed aligns with policy objectives and available resources.
 Establish a mid-level technical oversight group or task force, with a clear mandate and ToRs.
The key function of this body will be to coordinate the work and ensure consistency and
coherence across the various technical working groups at the level below.
 Establish appropriate working groups who will undertake the technical work in developing the
new curriculum. Good institutional analysis and capacity assessment should inform choice of
membership and expectations.

UGANDA’S COORDINATING STRUCTURE

The diagram shows the structure for the secondary curriculum reform developed in Uganda (World
Bank, CURRASSE, 2008). It shows four distinct functions from the highest level Steering Committee,
to the numerous sub-groups that are responsible for the technical work: developing the subject
content and syllabi. The intermediate working group ensures overall coherence across the technical
groups, and the consultative committee draws in a wide range of stakeholders, ensuring that their
interests are reflected in the process. This is not a blueprint, but a working example of what the
coordinating structure can look like.

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HIGH LEVEL POLICY DECISIONS
There may be a number of key policy decisions that need to be taken before the more detailed
curriculum development work can begin. These include:
 Decisions around the language of instruction
 Changes to the structure of schooling (e.g. length of primary, junior secondary stages)
 Changes regarding the expected number of days, hours of schooling
 Decisions around examination and assessment (e.g. the phasing out of end of cycle
examinations, use of continuous assessment, etc.).
It may be that some of these decisions are taken following advice of consultative groups, task forces
or commission of enquiry or reports. This will likely have been undertaken during the analysis stage.
BUT it is important to remember that curriculum change is as much a POLITICAL process as a
TECHNICAL one – and decisions are often not reached exclusively on the basis of evidence.
The important point is that there needs to be clarity on these big issues before the detailed work
gets underway.

THE CURRICULUM FRAMEWORK

The analysis undertaken in the first stage sets the scene for the subsequent reform. It provides the
necessary evidence to inform decisions in a number of key areas including curriculum content, who
to involve in design and how that will happen, and what the main threats and risks to
implementation might be.

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The key outcome of the design stage is a Curriculum Framework that sets out the overall vision: the
values, underlying principles, overall aims and objectives, the structure, the approach to teaching
and learning and how learning will be assessed. The Curriculum Framework is then used to develop
guidelines for the syllabus writers who will develop the details of what will be taught. Once Syllabus
Guidelines are in place the detailed work of developing the full curriculum can take place. The
approach needs to ensure a good degree of alignment between the elements (subject areas),
particularly in relation to developing competencies (see below) so they are mutually reinforcing.
The design stage sets out a clear process of how the new curriculum is to be developed, how the
process will be led, who will be involved, how the rationale, objectives and substance of the
curriculum will be developed, and how consultation will be managed. It will establish a clear timeline
through development, testing, launch, support for implementation and monitoring and evaluation.

WHAT DOES A CURRICULUM FRAMEWORK LOOK LIKE?

All frameworks are different, so this is NOT prescriptive: most Curriculum Frameworks will include
the following:

Broad policy statements, rationale underpinning the

Introduction curriculum, background to reform, outline of the reform
process

Statement of overall vision; core principles (e.g. inclusion,

Vision culture, flexibility, relevance to society, etc.); overall
objectives; core values

Specific subject areas by stages/years of schooling; language;

Detail description of core competencies and skills; pedagogy;
expected learning outcomes; how learning will be assessed

Gender; environmental issues; special needs; HIV/AIDS;

Cross cutting issues conflict and peace-building

Teaching and learning materials and approaches, including

Resources textbooks; school support and supervision (inspection)

Links to examples of curriculum frameworks:

Armenia: an example from of a national curriculum that expresses clear learning objectives:
http://www.ibe.unesco.org/curricula/armenia/ai_fw_2010_eng.pdf
Seychelles: http://www.ibe.unesco.org/curricula/seychelles/se_fw_2013_eng.pdf
Bolivia:http://www.ibe.unesco.org/fileadmin/user_upload/COPs/Pages_documents/Resource_Packs/TTCD/sit
emap/resources/3_1_5_CS_ENG.pdf

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DEVELOPING THE SYLLABUS GUIDES
Once the Curriculum Framework is agreed, the process of developing the full curriculum can begin.
This is where subject specialists come in, usually working in panels or task groups under standard
Terms of Reference and guidance.
The first stage involves the development of subject overviews. These form the basis from which the
more detailed syllabi are developed. Subject overviews are expected to include the following:
 Learning objectives for each subject area and stage or year
 Broad details of subject content
 The competencies that are to be developed
 How cross cutting issues, e.g. disability, special needs, gender, environment will be included
 Alignment and complementarity between subject areas and development of competencies
 Continuity between stages of years

The following links provide examples of syllabus guides:

India’s elementary level syllabus: http://www.ncert.nic.in/rightside/links/pdf/syllabus/vol1_el.zip
Primary science from Singapore http://www.moe.gov.sg/education/syllabuses/sciences/files/science-primary-
2008.pdf

STAGE 3: DEVELOPMENT – DEFINING THE DETAILS OF WHAT IS TO BE

TAUGHT, HOW AND WHEN

DEVELOPING THE DETAILED SYLLABI

Once the Curriculum Framework and the Syllabus Guidelines are in place, subject specialists work
to develop the core of the curriculum – the specific details of what will be taught, how it will be
taught, what competencies will be developed and how, and what learning outcomes will result at
each stage/year/grade of schooling. These are the detailed syllabi for each subject and they provide
the real substance to the curriculum, setting out content for each subject and stage or year. It is
common for these to be done by subject panels – groups of specialists.
The syllabus for each subject and each stage or year can be expected to give sufficient details for
teachers to be able to deliver the curriculum, for textbook writers/publishers to produce appropriate
learning materials and for examination and assessment bodies to be able to test what has been
learned. Typically the syllabus will:
 Set out the timed sequence and content of topics
 State what is expected to be achieved: the learning outcomes
 Provide guidance on teaching and learning materials
 Provide suggestion on how topics may be taught
 State what will be assessed and how

PREPARING FOR IMPLEMENTATION

It is during the development stage that collaboration and coordination between the key members
of the curriculum family is vital. As the detail of the curriculum is developed, the implications for
other areas becomes apparent and work needs to begin to prepare for implementation. Of
particular importance is the area of Assessment – failure to include reform to how learning is

14
measured will result in teachers teaching to old tests and principles. Equally important is the area of
teacher training, where institutions involved in preparing teachers need to adapt their programmes
to the new curriculum. Serving teachers need to be re-oriented through extensive in-service
programmes.

Detail subject syllabi developed

Programmes for Changes to School inspectors

Specifications for teacher examination and and supervisors,
textbooks and orientation and assessment including head
other materials training begin. New test teachers,
developed. After developed. items trialled, oriented.
trialling, Teacher training item banks Monitoring
production and college developed, procedures and
publishing starts curriculum specimen papers instruments,
revised trialled revised

TESTING AND PILOTING

Wherever possible, testing of key aspects of the curriculum will increase the chances of it being
“doable”. It is time consuming and there are substantial costs – so it is often ignored or done in a
superficial way.
Good piloting however will allow for adjustments before the curriculum is taken to scale and can
thus prevent costly mistakes. It can help check:
 The time required and the sequence of topics - allowing for adjustment of time and
expectation
 How teachers cope with topics – suggesting both training and materials that are needed
 How children respond
 How to assess learning

SIX COMMON PROBLEMS

MANAGE CONSULTATIONS TO BUILD OWNERSHIP

Decisions need to be taken in determining who to involve, the purpose and extent of that
involvement and how it will be managed.
Curriculum has many stakeholders, ranging from high levels of the political leadership, to teachers
and their unions, the world of business, civil society, religious leaders, to parents and children. All
will have a view on what should be taught and how it should be taught. A stakeholder analysis
should be undertaken as an early part of the design process, noting the levels of importance and
influence each has on the process. Think diversity! Failure to consult and failure to involve the key
institutions or departments will only limit the legitimacy and effectiveness of the reform. It is
important to get a good communication strategy in place at the start.

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Rwanda is in the early stages of a major curriculum reform process. It has engaged external support.
Stakeholder consultation is key in the early stages which is being managed through the Rwanda
Education Board.

In the Dominican Republic in 2012, more than 1800 stakeholders (i.e., parents, employers, social
organisations, churches, public representatives, local civil servants) participated in a national
consultation day in advance of the curriculum revision. A few main points raised included the critical
importance of teaching values and competencies and improving the learning environment.

Examples of the consultation process:

Rwanda:http://www.reb.rw/index.php?id=79&tx_ttnews%5Btt_news%5D=95&cHash=5ffdc998524dfca139
37726fdf0a82f8
Dominican Republic: http://sitios.educando.edu.do/revisioncurricular/data/uploads/consulta-social-para-la-
revision-curricular.pdf.

GETTING STUCK IN SILOS

It is not uncommon for there to be a lack of coordination and a degree of isolation, even antipathy
between the key agencies central to curriculum
design and delivery. The links between curriculum,
teachers, materials, examinations and supervisors
are all too obvious, but in reality these family
members are often distant. Frequently they
compete for scarce resources, increasing the discord
between them. In addition, as the key actors belong
to different departments, managing their
collaboration can be problematic.
The importance of the relationship between these
key entities of departments has already been
emphasised. A major curriculum revision provides a real opportunity for change: but the approach
has to be to involve these core entities from the outset. If curriculum reform is approached in a
sequential way – do the curriculum first, then think about books, then train teachers and then
change assessment it will fail. If reform is to succeed then it is essential to involve all these key
players from the outset in the process and ensure there are adequate resources for each to meet its
commitments to supporting the reform.
By the same token, if one of these areas is neglected, delivery of the curriculum will be weakened. In
particular the area of assessment, if not linked to the new curriculum, will continue to force teachers
to follow the old curriculum, as there is always a strong tendency to teach to the exam or test.

THE DANGER OF OVER AMBITION: THE INTENDED, IMPLEMENTED AND ATTAINED

CURRICULUM
There are a number of reasons why so many children fail to achieve even basic levels of literacy and
numeracy, including lack of teacher skills, insufficient time on task, lack of books, overcrowded
classrooms, and frequent absence. One important reason is that the primary curriculum is often over
ambitious, making demands on both teachers and learners that are unrealistic in terms of time and

16
resources. Pressures on teachers to complete the curriculum result in too fast a pace for many
children to keep up, who then fall further and further behind. Setting more realistic curriculum
targets has worked in raising achievement in some contexts. Research that contrasts the experience
and achievement of learners in Viet Nam and India, shows that Viet Nam’s policy of simplifying the
primary curriculum – reducing its size in favour of a stringer focus on core learning areas – resulted
in significantly higher achievement (GMR 2014 p. 281) than that of India, which took the opposite
course in developing a larger, more complex curriculum. More is not necessarily better.
It is essential from the outset to recognise the reality of teaching and learning, and whilst striving to
improve is always to be encouraged, adopting a curriculum that is beyond the capacity of teachers
and learners will surely fail the majority of children. Focussing on the core competencies of literacy
and numeracy at the primary stage should be a priority.

There are frequent gaps between what is to be learned, what is actually taught and what has been
learned. There is often a considerable “drop off” between these three levels. Understanding why
this happens and what needs to change is critical to curriculum reform. The diagram below
illustrates the differences between the intended, implemented and attained curriculum and why the
gaps occur.

•The IDEAL: the “vision” and underlying philosophy

•What is intended to happen, expressed in curriculum
documents and syllabi. Often over-ambitious: too much
Intended and too difficult.

•How the curriculum is interpreted and delivered by

schools and teachers in the classroom
•Constrained by teacher skills, lack of resources, prior
Implemented learning, overcrowded classrooms

•What learners experience in the classroom and what

learning outcomes they achieve
•Child fail to keep up, curriculum gets increasingly ahead
Attained of them – and they fail to achieve what is intended

LANGUAGE AND LEARNING

There is now a substantial body of evidence that points to the importance of early years of schooling
being in a child’s mother tongue. Language policy is highly contested in many countries, and choice
of the language of instruction is very frequently driven more by politics than by evidence. This is a
key issue for curriculum design, and one that exerts a significant impact on the gap between the
“intended” and “attained” curriculum. Global evidence points strongly to the importance of
establishing mother-tongue literacy to ensure sustained learning in minority language learners.
Early transition to the official national language and/or English is still common policy in many
countries. Many children, as well as teachers, fail to cope with this, and having limited competence

17
in the language of instruction inevitably restricts learning. Textbooks written in a language that
pupils – and often teachers – don’t understand are a wasted resource and often do not aid
learning.
Implementation of bi- or multi-lingual curriculum policies are complex, and there is often resistance
to mother-tongue instruction from parents (voters) and politicians, who associate the national or
English language with greater employment and life opportunities. The evidence suggests this is not
the best policy. Informing an open-minded policy debate and resourcing that debate with evidence
is important.
The link below summarises the innovative approaches to mother tongue language support in a
number of OECD countries: http://www.oecd.org/edu/innovation-education/44824195.pdf.

A CURRICULUM FOR ALL BY ALL

National curricula frequently fail to be truly national: cultural, ethnic, power and gender biases often
favour some over others. Negative stereo-typing creeps in, or may even be deliberately constructed.
The previous section raised the issue of language which can be a major obstacle for many in
accessing the curriculum. “Capture” of the process by particular groups often skews the curriculum
towards those groups. Ensuring diversity amongst those who steer and guide the curriculum reform
is important in building greater inclusion. Similarly, working groups need a balanced membership of
stakeholders, including teachers, representatives from different ethnic groups and speakers of
minority languages. Similarly, the interests of minorities, and in particular children with disability,
are frequently not adequately considered during the curriculum development process.

LACK OF FINANCE FOR COMPLETE REFORM

Pakistan’s experience in introducing a new curriculum is a prime example of the dangers of not
approaching the process in a coordinated way and not allocating sufficient resources to see the
process through. The curriculum was revised in 2006, yet in 2011 it remained largely
unimplemented. Textbooks had not been revised, nor had teachers received adequate training. This
was in part due to inadequate resources, and poor planning.
Proper costing is thus essential at the outset. Where resources are constrained, the option to phase
in a new curriculum year by year can be considered – though there are risks that the job will only be
partially done.
 What are the initial and annual recurrent costs of new textbooks?
 What immediate and on-going re-training of teachers is required?
 What are the costs of changing teacher training college programmes?
 What are the costs of the changes to the examination and assessment systems?

WHAT GOOD AND BAD LOOK LIKE!

Good practice Poor practice

 Developed in an open and participatory  Developed behind closed doors in the
way, extensive consultation curriculum department
 Piloted and tested for validity  Too rushed to be able to pre-test

18
  New curriculum well communicated and  Reform is poorly communicated and
distributed prior to launch not understood by majority
 Serving teachers oriented and trained  Teachers unaware and untrained,
before, curriculum guides developed and continue to teach to old curriculum
distributed  No support materials available to
 Teacher training college curriculum teachers
aligned, and staff trained  Teacher colleges not involved and
 New textbooks and learning resources courses continue to prepare for old
printed and in schools curriculum
 New assessment and examination  Books still being developed, now new
system launched at same time books in schools
 Inspectors and supervisors oriented and  Examinations unchanged, so assesses
trained, able to monitor and promote on old curriculum
new curriculum  School support and supervision remains
based on old curriculum

WHAT ADDED VALUE CAN THE EU BRING?

The role of external development partners, including the EU, in the curriculum process needs to be
considered sensitively according to context. Many countries, for good reason, are reluctant to open
up what is an essentially national and often political process to foreign influence. Many will
actively resist what is perceived as interference. This is especially the case where a deeper political
motivation is felt to drive the partner’s interest. The case of US involvement in Pakistan’s curriculum
reform of the 1990s is a good case. It is important to be neutral and help manage risk.
In other circumstances, the door is more open and government more willing to engage outside
assistance. Others may openly welcome the opportunity to learn from and engage with wider
experiences, recognising the “more of the same” limitations of their own capabilities.

EU support can spread across the five stages and take two basic forms: technical assistance to help
build capacity and steer the reform process, and financial assistance to help meet the extensive
costs of doing it well. The one complements the other.

The curriculum reform process can become a crowded house, with development partners
sometimes seemingly competing for pieces of the reform, driven by their own specific priorities and
preferences. This can lead to a piecemeal and fragmented approach, with a lack of consistency in
how the various areas of the curriculum are articulated, developed and resourced. Collaboration
between development partners is desirable, but it needs to result in a unified and coherent
approach. There is an important coordinating role to play when there is a crowded house.

AT THE ANALYTICAL STAGE

By providing additional human and financial resources to the initial curriculum analysis, the EU can
add considerable value. The point of greatest influence is often in the initial analysis and
conceptualisation stage. This can in effect open up the space for future dialogue. External partners
are often in a good position to bring in wider global experience, though it is important not to be

19
prescriptive. High quality international expertise can therefore support sound analysis, inform the
debate through looking at relevant international good practice, and so help the partner government
think through options. This helps build both trust and confidence – and can influence a realistic and
achievable agenda for reform. Good analysis and evidence has the potential to inform the debate,
and provide some counter to politically driven but inappropriate choices.

AT THE DESIGN AND DEVELOPMENT STAGE

In a similar way, supporting these stages through technical and financial resources can make a
significant contribution to the curriculum reform process. External partners can bring in highly
experienced expertise to work alongside national actors.

There are however very real dangers associated with “importing” foreign models, attractive as they
may sometimes seem to the political and bureaucratic leadership who frequently have OECD-level
aspirations that are overly ambitious for the existing national reality. Where relevant examples of
successful change are identified, brokering some exchange between the countries may be a
productive approach. This can include exposure visits or study tours. Technical Assistance to support
the process can range from, at one end, a whole “package” to manage the process, to provide short
and long term technical expertise in key areas and to build capacity of key institutions, through to
short, discrete inputs a key points.

There are substantial costs in these two stages; there is an extensive amount of work involving
special technical and consultative groups, and investing in a broad consultation and communication
process. These are areas where domestic resources are frequently insufficient. Thus, external
partners can provide an assured level of finance to support the whole process.

THE IMPLEMENTATION STAGE

Having a new curriculum in place in itself is no guarantee it can be effectively delivered and result in
the learning changes that prompted the reform in the first place. Ensuring the curriculum is
effectively delivered requires substantial support across the “family” identified earlier. Curriculum
change may involve a number of wider, systemic changes that involve increased cost. This can
include the need to hire new or redeploy and retrain existing teachers. Substantial technical and
financial support should be considered to:
 teacher training and support, to ensure teachers become quickly familiar with and able to
apply the new curriculum
 textbook and materials need to be developed and produced to align with the changes
 school supervision and inspection processes need to change and actors re-oriented and
skilled to support the change
 examinations and assessment needs to change so that the new curriculum is what is
assessed
It is highly unlikely that one single development partner will cover the above, so high levels of
coordination are required so the total is the sum of the parts.

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EVALUATION
Only through regular and good quality monitoring and evaluation of a new curriculum are we able to
see whether it is working or not. Three areas in particular may be considered for support:

 Support to school supervision, including what is happening in classroom, is the way in which
an understanding of curriculum delivery is built up.
 Specific pieces of research that look in detail at particular areas of the curriculum, help
understand what is working (or not) and why and enables further adaptation and support.
Good research (and developing national capacity for it) that is widely disseminated helps
promote a more vibrant discourse around the curriculum and learning.
 Measuring learning outcomes: the value of regular and high quality assessment of learning
provides the necessary evidence base on the extent to which the system is working.

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REFERENCES

This section provides a brief list of useful reading, much of which provided background for this
paper. Wherever possible, links are provided.

Literature Review on Pedagogy, Curriculum, Teaching Practices and Teacher education in

Developing Countries. Education Rigorous Literature Review. Department for International
Development (DfID), authored by Westbrook et al. (2013).
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/305154/Pedagogy
-curriculum-teaching-practices-education.pdf. This comprehensive literature review examines the
following question: Which pedagogic practices, in which contexts and under what conditions, most
effectively support all students to learn at primary and secondary levels in developing countries?

International Review of Curriculum and Assessment Frameworks. Internet archive. Claire Sargent,
Anne Byrne, Sharon O’Donnell and Elizabeth White (2010). National Foundation for Educational
Research (NFER). Review and development of curriculum in 23 developed countries/states
http://webarchive.nationalarchives.gov.uk/20130220111733/http:/inca.org.uk/Curriculum_review_
probe_final_01_dec_2010.pdf. It considers the following questions:
 Are reviews of the curriculum scheduled at regular intervals or are they ad hoc in response
to emerging issues?
 Have the most recent reviews of the curriculum covered all ages and phases? Have they
included pre-school education?
 What were the reasons for the most recent changes to the curriculum? What were the aims
or purposes of these changes?
 To what extent has the consistency of the curriculum framework across phases been an
issue for these changes? What challenges have arisen and how have they been addressed?

Training Tools for Curriculum Development: A resource pack. Practical manuals to assist specialists
involved in curriculum change and reform. Includes case studies from more than 110 countries and
is organised in 8 modules (e.g., policy dialogue and formulation, capacity building for curriculum
implementation, curriculum evaluation and student assessment).
http://www.ibe.unesco.org/fileadmin/user_upload/COPs/Pages_documents/Resource_Packs/TTCD/
TTCDhome.html.

Curriculum development homepage with resources on curriculum development, including themes

on early grade reading and inclusive education. http://www.ibe.unesco.org/en/themes/curricular-
themes/improving-reading-in-the-early-years-of-primary-school.html.

Links to national curriculum documents and other curriculum-related materials (listed by country):
http://www.ibe.unesco.org/en/services/external-links/curricular-resources.html

Various International Bureau of Education (IBE) publications, including working papers on

curriculum issues: http://www.ibe.unesco.org/en/services/online-materials/publications.html
IBE curriculum glossary:
http://www.ibe.unesco.org/fileadmin/user_upload/Publications/drafts/IBE_curriculum_glossary_fin
al.pdf

“Starting Strong: A Quality Toolbox for Early Childhood Education and Care” (2011). A useful link on
key steps and issues, from the OECD http://www.oecd-ilibrary.org/education/starting-strong-
iii_9789264123564-en

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“Reviews of National Policies for Education: Kyrgyz Republic” (2010). Chapter 5 summarises issues
and challenges around the national curriculum. http://www.oecd-ilibrary.org/education/starting-
strong-iii_9789264123564-en

Linda Chisholm and Ramon Leyendecker (2008) “Curriculum Reform in post 1990s sub-Saharan
Africa. In International Journal of Educational Development 28 p. 195-205.
UNESCO (2012) Primary School Curricula on Reading and Mathematics in Developing Countries.
Technical Paper No.8

“Uganda Secondary Education and Training: Curriculum, Assessment & Examination (CURASSE)
Roadmap for Reform” (2007)

University College Dublin (2010) “Programme Design: Overview of Curriculum Models”. UCD
Teaching and Learning Resources

Massimo Amadio (2013) “A rapid assessment of curricula for general education focussing on cross-
curricular themes and generic competences or skills”. Background paper for the EFA Global
Monitoring Report 2-13/14. UNESCO.

Kiira Kärkkäinen (2012) “Bringing about Curriculum Innovations: Implicit Approaches in the OECD
Area”. OECD Working Papers no.82

Yidan Wang (2012) “Education in a Changing World: Flexibility, Skills and Employability”. World Bank

Lindita Boshtrakaj et al (2010) “Kosovo Curriculum Framework: Curriculum Writers Handbook”. EU

Education SWAp Project.

Mother tongue instruction: the SEAMO project

http://www.seameo.org/index.php?option=com_content&view=category&layout=blog&id=108&Ite
mid=549

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