Policy Provisions and Teachers' Needs on Climate ...

International Journal of Asian Business and Information Management Volume 7 • Issue 4 • October-December 2016

Policy Provisions and Teachers’ Needs on Climate Change Education for Sustainable Development in Mongolia Navchaa Tugjamba, University of the Humanities, Ulaanbaatar, Mongolia Batchuluun Yembuu, Mongolian State University of Education, Ulaanbaatar, Mongolia Amarbayasgalan Gantumur, University of the Humanities, Ulaanbaatar, Mongolia Uranchimeg Getsel, Mongolian State University of Education, Ulaanbaatar, Mongolia

ABSTRACT There is scientific consensus that Mongolia is already facing the negative consequences of climate change. Raising public awareness and increasing education initiatives is one of the most important ways to adapt and mitigate climate change. The present research team reviewed the policies and provisions in support developing climate change education for sustainable development. To strengthen public awareness of climate change and sustainable development, teachers at all level must play an important role. The team analyzed the level of teachers’ knowledge of climate change education for sustainable development and determined the needs for teacher training. Education policy recommendations and the possibilities for teacher training were defined. KEywoRDS Climate Change Education (CCE), Disaster Risk Reduction (DRR), Education for Sustainable Development (ESD), Policy, Teacher Education

INTRoDUCTIoN Education is critical for promoting sustainable development and improving the capacity of the people to address environmental and developmental issues (UNCED, Agenda 21. The United Nations Action from Rio., 1992). From the time sustainable development was first endorsed at the UN General Assembly in 1987, the parallel concept of education to support sustainable development has also been explored. From 1987 to 1992, the concept of sustainable development matured as committees discussed, negotiated, and wrote the 40 chapters of Agenda 21. Initial thoughts concerning Education for Sustainable development were captured in chapter 36 of Agenda 21, “Promoting Education, Public Awareness, and Training” (McKeown, Education for Sustainable Development Toolkit, 2002). Obviously, education is an essential tool for achieving sustainability. People around the world recognize that current economic development trends are not sustainable and that public awareness, education and training are essential to move society toward sustainability (Charles Hopkins and Rosalyn McKeown, 2002). Mongolia, like most of the countries, agreed on the UNFCCC declaring the commitment to develop and implement an Education for Sustainable development, in 1992. The following result is the first national policy document on sustainable development, “MAP 21: Mongolian Action Plan for the 21st Century”, which was developed and approved in 1998. One of the main goals, “Concentration on nurturing the educational and scientific sectors to allow them to be better able to meet the diverse

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DOI: 10.4018/IJABIM.2016100103 Copyright © 2016, IGI Global. Copying or distributing in print or electronic forms without written permission of IGI Global is prohibited.

intellectual requirements of Mongolians as they strive to implement sustainable development” (MAP, 1998), is the initial and official statement of education for sustainable development in Mongolia. Climate change impacts the natural environments and the livelihood of the people in Mongolia, obviously. The study of climate change, began in 1979 in Mongolia, after the second World Meteorological Conference. “Climate change” was the first symposium, organized by the Institute of Meteorology and Hydrology in June, 1980 (Dagvadorj.D, Natsagdorj.L, Dorjpurev.J, Namkhainyam.B, 2009). Sustainable development, however, has been discussed in Mongolia since 1992 while the issue of education for sustainable development was initially discussed in policy documents since 1997. As a result, the “State Ecological Policy” was developed and approved by the State Great Khural (Parliament) in 1997. But ecological policy and ecological education issues are strongly based on biological science perspectives in Mongolia, and climate change education for addressing sustainable development issues is still not declared at the official policy level. Issue is that Mongolia is very sensitive to climate change due to its geographic location, sensitive ecosystems and socioeconomic condition (Dagvadorj.D, Natsagdorj.L, Dorjpurev.J, Namkhainyam.B, 2009). While there is emerging awareness of the current and potential impacts of climate/environmental change on education provision and learning, it is also clear that education: formal and non-formal, from primary through to tertiary and adult education-has an important role to play in addressing this change (Colin Bangay, Nicole Blum, 2010) around the world. Moreover, climate change education for sustainable development is a new term in Mongolia. According to its obligations and commitments under the UNFCCC, the Mongolian Government initiated and implemented the National Action Program in Climate Change which was approved by the Government in 2000. The Millennium Development Goals (MDGs)-based Comprehensive National Development (MDGbCPND) Strategy of Mongolia was approved by the Parliament of Mongolia on 12 February 2008 (MNET, 2011). Pilot area 5 of the MDGbCPND strategy states, “To create an environment for sustainable development in the way of building capacity to adapt to climate change, and limiting and protecting loss of ecological equivalence” and this statement is the basic rationale for the development of the National Action Program on Climate Change (MNET, 2011). Because of the statement, “Within this framework, activities in expanding public participation and awareness about eliminating negative consequences, ways to overcome, and adapt to climate change and desertification will be implemented” (Pilot area 5 of the strategy) (MDGbCPND, 2008), MDGbCPND Strategy is the first policy statement that addressed climate change education in Mongolia, in terms of education. Due to the existing socio-economic situation, the National Action Program in Climate Change was redeveloped and approved in 2011. The most detailed statement about “climate change education” was appeared on the “National Action Program on Climate Change”. The fifth objective of the program was “to conduct public awareness campaigns and support citizen and community participation in actions against climate change”. To achieve the objective, the following actions will be taken in 2012-2021: • •

Include courses about climate change and the green economy in all levels of school programs; Develop educational curriculums and define new profession indexes and classifications related to climate change and environmental sectors.

As mentioned in Bangay and Blum, we do not see education’s response to climate change as simply the provision of new curriculum inputs; rather, the challenges of climate change require all concerned to look to fundamentals and examine the degree to which existing educational provisions 37


are adapted for radically different futures (Colin Bangay, Nicole Blum, 2010), especially in Mongolia. In the otherhand, to enhance the development of young professionals in the field of climate change adaptation, the topic could be included in higher education, especially in formal education programs. Higher education should be done through lectures and course work, field studies, internships, and establishing the education-research link by exposing students to field realities. In this regard, guiding principles could include an inclusive curriculum, focus on basic theory, field orientation, multidisciplinary courses, and practical skill enhancement (IPCC, 2014). In secondary education, there are often existing tensions between a centralized curriculum and the need to promote locally based and locally appropriate issues. Areas of knowledge will require cooperation between local, national and international actors (Colin Bangay, Nicole Blum, 2010). Thus, we would like to know the coverage level of climate change education for sustainable development in national educational standards, curricula and textbooks. Beyond the policy, are we ready to play a key role in addressing climate change? It is obvious that poor environmental literacy and limited knowledge of climate change are manifestations of a more profound problem with the low quality of science education (R. Abbasi, 2006). The “National Action Program on Climate Change” (2011) was approved by the State Great Khural is the initial and most important achievement to develop climate change education in Mongolia. The main expected outcome of the program is “Expanded and increased number of citizens, cooperatives and organizations who are engaged in actions to respond to climate change and implement relevant projects and programs” by 2021. To succeed, climate change education for sustainable development “must have an authoritative impetus from national or regional governments that will drive policy development” (McKeown, 2002). Our previous research results showed that public understanding of climate change is limited and unclear. Thus, we need teachers to play important role in accomplishing the goal. As Sherrie Forest argued, “the public’s limited understanding of climate change is partly the result of critical challenges that have slowed development and delivery of effective climate change education (Sherrie Forest, Michael A. Feder, 2011). The question is whether teachers are prepared to engage in public awareness efforts on climate change? Making progress towards a more sustainable society requires a population that is aware of the goals of sustainability and has the knowledge and the skills to contribute towards those goals (UNESD, 2005, p.29). Although documents have been developed that define the term “climate literacy,” further elaboration of its meaning is needed, particularly around expectations for actions or activities to combat climate change (“stewardship”) (Sherrie Forest, Michael A. Feder, 2011). Recent concerns over climate change have increased interest in mitigation and adaptation. Adaptation seems most relevant to vulnerable communities in Asia; they contribute minimally to emissions and therefore play a minimal role in climate change mitigation. Their entire future, however, is jeopardized by imminent climate change impacts, and thus they are dependent on appropriate climate change adaptation (CCA) interventions. CCA and DRR are also closely linked and have a number of other related thematic areas of concern that require attention (AUEDM, 2011). Effective communication of climate change science is important not only to ensure that individuals understand the impacts of climate change but also to encourage action for climate change mitigation and adaptation (Boon, 2014). If pre-service and in-service teachers learn to weave ESD issues into the curriculum and to use pedagogical techniques associated with quality ESD, then the next generation will be capable of shaping a more sustainable world (UNESCO, 2005). Understanding the knowledge, beliefs and attitudes towards climate change that exist among members of the general public is important in designing appropriate teacher training for educators. Equally important is examining teachers’ knowledge, beliefs and attitudes towards climate change (Boon, 2014).

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“Climate change educati (McKeown, Education for Sustainable Development Toolkit, 2002) on for sustainable development” is quite a new concept in Mongolia, and the country has been at its starting point of integrating the related concepts into its education system. At this moment, the integration level has been limited. Thus, our team proposed to determine the level of current integration of climate change education for sustainable development into the Mongolian educational teaching and learning process by conducting a National Study in the areas of policy development and teacher knowledge to define future possibilities. To achieve the main goal, the following objectives were defined: • • needs.

To analyze current policies, plans, and programs in terms of CCE/DRR/ESD; To assess teacher knowledge of CCE and DRR and to identify their training

RESEARCH METHoDoLoGy AND DATA The research study consists of two main analyses: • •

Review of policy: Educational, environmental and development related national policy documents, laws, national programs, guidelines and orders; Review of teachers’ knowledge of climate change: In order to define the needs of the training on Climate change education for sustainable development. The following methods were used in the research study:

•

Policy analysis matrix (PAM) comprised of two sections: ◦ The first section reviewed total 37 documents, such as educational laws, programs, plans and policy documents related to climate change education (CCE), disaster risk reduction (DRR) and education for sustainable development (ESD) in Mongolia. This includes 6 laws, 19 national programs passed by the parliament, plans, and policy documents, and 5 programs adopted by the orders of the Minister for education and science; ◦ The second section covered 12 laws related to environmental management, climate change and disaster risk reduction and 16 national programs and other policy documents. Quantitative/qualitative analysis:

• •

To define the level of teacher knowledge and understanding of CCE/DRR/ESD, a 25-questions survey was developed; In addition to the standard questionnaire, the qualitative assessments were made via unstructured interviewed of research participants.

RESULTS Policy Analysis Matrix The team reviewed all of the above documents to locate any provisions, content and issues related to CCE/DRR/ESD. We did not look only for the exact words “Climate change education” and “Education for sustainable development”. Instead, we counted and evaluated terms with similar meaning:

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1.

2.

Educational Policy: In the six educational laws, there have been numerous provisions related to sustainable development, but no provisions directly related to CCE and DRR were found. The only provision that seemed to be related to DRR had to do with what actions need to be taken when disasters happen and who can be covered by these actions. The provisions are 8.3, 15.3, and 9.3 in the laws of Higher Education, Primary and Secondary Education, and Preschool Education, respectively. Compared to the laws, quite a few provisions were found relevant to the areas of CCE/DRR/ESD in some of the national programs passed by the cabinet; Environmental and Development Related Policy: Review of these documents reveals that the first policy documents on climate change and disaster management were produced in 1992. However, certain policies including public awareness activities, transferring knowledge and offering education on these subjects, have existed in policy documents since 1997. Table 1 shows a list of documents where CCE/DRR/ESD have been reflected.

Table 1 shows that there have been 19 provisions related to CCE/DRR/ESD included in 11 policy documents out of 16 reviewed. Eight of them are related to ESD, 5 of them specifically to CCE and 6 of them specifically to DRR. The Millennium Development Goals based Comprehensive Policy for National Development of Mongolia (MDGbCPND) of Mongolia, as a main policy document, contains a limited number of provisions on DRR, even though there have been some provisions on CC/SD. The National Program on Water Resources, the National Program on Coping with Desertification, and the National Program on Climate Change that were produced based on the MDGbCPND, however, have contained comprehensive provisions in all three areas (Table 2). In disaster related policy documents, provisions have focused on delivering indigenous approaches, improving knowledge of the public, using remote sensing to identify risk and disasters, introducing forecasting approaches and technologies, developing ways to deliver forecasted information to users immediately, and improving forecasting systems. The focus, however, did not include public awareness activities for preventing disasters and improving consciousness of the public on disaster risk and its consequences.

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Table 1. Reflection of CCE/DRR/ESD in climate change and environmental policy documents

+ reflected - Not reflected

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Table 2. Interrelations of provisions on CCE/DRR/ESD in different policy documents

Eventhough CCE/DRR/ESD related terms and issues have been presented in many of the documents, progresses and processes to increase a public knowledge and awareness and introduce the related concepts into the educational system have been slow. In addition, it was found that CCE/DRR/ESD provisions have been reflected in a limited way in legal documents related to environmental conservation and proper use and protection of natural resources. Furthermore, CCE issues have been reflected in only the National Program on Climate Change, and DRR has been considered in the National Program on Prevention of Disasters. Analysis of Teacher Education A questionnaire has been developed to measure the knowledge, and identify continuing training needs of teachers, on ESD/CCE/DRR. This questionnaire was applied to approximately 150 teachers in urban and rural areas, and 94 percent of respondents were women and 6 percent were men. The dominance of female teachers in our sample matches the overall ratio of male and female teachers in the country. Over 80% of secondary school teachers in Mongolia are female. The questionnaire consisted of two parts: (i) respondent’s age, years of employment, level of their training, and (ii) questions to determine teachers’ needs. For example: 42


• • • • •

What do you know about adaptation to climate change? What source (where) do you rely upon for information about climate change? What kind of training would you choose to improve your knowledge of climate change? How much are the following CCE/DRR concepts related to your teaching? What are the ways to teach CCE/DRR through your field of teaching?

Rural teachers were a target for focus group discussions. 46% of the respondents answered that the questions in the questionnaire related to their course and 39% think that these issues are deeply involved while only 5% answered as related and necessary to be taught at schools. The followings are example questions of focus group discussions: • • • • • • • •

Is there any faucet in your school toilet that leaks? Have you seen any empty classrooms with the lights left on? Do teachers use both sides of the paper when printing or making photocopies? Do you have garbage bins at your school for sorting garbage? What are the main issues that you are facing at the local level? Are there ways to resolve them? How much do parents participate in renovating classrooms and gardening school areas? What aspects of indigenous knowledge has been forgotten in your area? Have you attended any training on CCE/DRR?

Answers of the respondents are shown in Table 3. Although most of the respondents agree that concepts relate to their courses, teachers have different thoughts on each of the questions depending on their professional background. For example, primary school, Mongolian and foreign language teachers think that teaching about cultural differences and the misunderstandings associated with it and maintenance of traditional culture is deeply related, while natural and social science teachers answer that issues being faced by people, climate change, social and human ecological issues and changes in the relationship between people and nature would be the deeply related ones. There have been some teachers who think that it is not necessary to teach about CCE/DRR/ESD. This picture indicates the need for comprehensive training to improve teacher knowledge. Most teachers answered that it was important to integrate these topics in their curricula and teach to students (Table 4). Table 3. Relationship of CCE/DRR/ESD into teaching Main Concepts of ESD/CCE/DRR

Not Related

Related

Deeply Related

Change in relationships of humans and nature, positive and negative consequences of social development

8

58

24

Main concepts of social and human ecology: CCE/DRR

5

61

26

Issues being faced by people

4

42

46

Over consumption and resource scarcity

10

58

23

Cultural difference and misunderstanding

9

60

23

Keeping traditional culture and habits

5

46

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Table 4. Thoughts of teachers in integrating ESD/CCE/DRR into their courses ESD Concepts

Not Important

Do Not Know

Important

43


Skills to understand personal and social values

11

10

71

Ethics

1

10

81

Needs of working and living together

1

8

84

Safety of living environment

4

8

80

Healthy living (right diet, fitness & wellness, nutrition etc.)

2

9

81

Answers to the questions to assess teachers’ knowledge show that most of the teachers do not have a clear understanding of ESD/CCE/DRR. Perhaps the questions were unclear, which led to this results. Table 5 describes the answers of teachers. There have been many trainings organized for teachers. As a result of these trainings, teachers should have already been advanced into a level where they can teach CCE/DRR/ESD in secondary schools. In-service teachers were asked to evaluate the quality of general/not specific trainings they attended and findings are presented in Figure 1. Table 5. Teacher knowledge of CCE/DRR/ESD (percent) Connecting Concepts of CCE/DRR into Education Activities

Reflecting Main Characteristics of CCE/DRR/ ESD in Order to Introduce CCE/DRR/ESD in their Teaching

Assessing Student Development and Changes in Behavior

Education standard

52.0

25.0

23.0

Level of textbook use

32.0

44.0

25.0

To have a set of curricula for an entire course

41.0

34.0

25.0

To have curricula for an entire chapter

45.0

32.0

2.04

To have curricula for a unit

44.0

32.0

25.0

Periodic plans

44.0

28.0

28.0

Teaching aids

32.0

33.0

36.0

Teaching subjects

36.0

41.0

32.0

Improving curricula for all grades

42.0

37.0

21.0

Analysis of subjects

35.0

26.0

38.0

Developing students

22.0

24.0

54.0

Training environment

35.0

34.0

31.0

Skill and knowledge improvement training

28.0

48.0

24.0

Developing extra curricula

40.0

30.0

30.0

Teacher ethics

49.0

38.0

14.0

Developing oneself

34.0

35.0

22.0

Participating in extra curricular activities

50.0

29.0

21.0

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Figure 1. Quality of trainings for in-service teachers, by percentage

67 percent of teachers think that in-service trainings are timely and important in terms of content, building new knowledge, and importance. 53 percent of the respondents answered that training methodologies have been suitable. To the questions of selection and development of methodologies, similar percentages of teachers answered positively. However, respondents gave negative answers to the quality of organizational material of trainings and the sufficiency of teaching aids. In terms of duration and timing of the in-service trainings, respondents think that trainings should last one to five days (75%) during students’ holiday times (82%). The study team has also investigated the impressions of in-service teachers regarding results of the trainings. The findings are presented in Table 6. The findings of this questionnaire show that trainings give achieve average results, with 62% and 67% for each of the questions. Only 12% and 16% think that the trainings have good results, with similar numbers that the results are bad. This indicates that training contents, methodologies, and quality should be improved to meet needs of teachers. The study team also asked questions related to the problems hindering their attendance in inservice trainings. Findings are presented in Table 7. In most cases, teachers do not experience problems in attending in-service trainings, but around 30 percent of teachers feel some kind of difficulty. Although 30% is less than half of the votes this indicates that there is some level of problems with the operations of in-service training compared to Table 6. Results of in-service trainings Results of Trainings

Unsatisfied

Average

Good

Whether the trainings touch issues that teachers face every day and activities they conduct every day.

12

62

16

Whether the trainings give needed guidance to make effective changes to their curriculum

12

67

12

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Table 7. Problems hindering the attendance in in-service trainings (percent) Questions

No

Yes

Very Much

School supports teachers to attend in-service trainings

38.0

49.0

13.0

Do you pay tuition fees from your own pocket

9.0

57.0

34.0

Systems to distribute announcements of trainings

29.0

52.0

19.0

Possibility to know training quality in advance

35.0

48.0

16.0

Possibility to select trainings based on own need

3.0

58.0

12.0

Provisions of methodologies to improve own skills and knowledge at workplace

28.0

53.0

19.0

Possibility and condition to improve own skills and knowledge at workplace

33.0

57.0

11.0

what we would expect with no problem. Teachers do not face any problem of paying training fees to attend in-service training fees. In all cases, this is generated by the state budget, except for a few cases. CoNCLUSIoN AND RECoMMENDATIoNS This study shows that there has been limited coverage of climate change education and disaster risk reduction in legal and policy documents. This indicates that more work is required to develop ways to include issues of climate change and disaster risk in the educational system. Teacher knowledge and skills have been limited in teaching CCE/DRR/ESD. Depending on background, every teacher explains the concept of climate change education for sustainable development differently. There is a need to give the same level of CCE/DRR/ESD education to all teachers. Activities to improve public understanding of CCE/DRR policies, and clear expected outcomes should be added to national programs including the “National Program on Water Resources”, the “National Program on Coping with Desertification”, and the “National Program on Climate Change”. Every environmental law should have certain provisions related to climate change and disaster management in accordance with their purposes. For example, water laws should contain provisions on supporting: (i) local initiatives on conserving water sources, (ii) re-introducing traditional and indigenous knowledge on water conservation, and (iii) research on best practices of water conservation, and introducing new methods for conservation best suited to Mongolia, etc. In related laws and policy documents, an organizational structure of raising public understanding and advocacy should be clearly incorporated. Legal documents should clearly say what should be done under the current capacity building programs for climate change education for sustainable development. In current documents, capacity building programs have been mentioned, but there is no clear guidance on how will it be carried out. It has been difficult to list names of specific trainings needed for teachers since study results show that teachers lack general understanding of CCE/DRR/ESD. Therefore, the team suggests the following: •

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Systematic trainings for teachers on CCE/DRR/ESD are needed to ensure that all teachers have the same level of knowledge and skills in teaching the subjects. To do this, trainers at the CCESD and training materials and manuals should be prepared well to transfer the knowledge to in-service teachers;


•

• •

Teachers should learn methodologies to transfer their knowledge to students, connecting the CCE/DRR/ESD with the subjects they teach. Teachers agree that they should transfer CCE/ DRR/ESD knowledge to their students, but they remain unsure how to transfer the knowledge. In other words, they lack methodologies in teaching; Teachers need up to date teaching aids to help them efficiently transfer their knowledge to students; Teachers need to learn not only new knowledge and new ways of teaching, but also the methods on assessing students’ knowledge and skills.

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