Appraisal of the Government of Ghana Education Sector Plan 2010
Transcription
Appraisal of the Government of Ghana Education Sector Plan 2010
Appraisal of the Government of Ghana Education Sector Plan 2010-2020 March 2012 Global Partnership for Education Ghana Development Partner Group Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Exchange rate US$1 = GH¢1.681 2 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table of contents 1 Appraisal and Endorsement of the Education Sector Plan 2010-2020 ......................................... 11 1.1 Country: Ghana ................................................................................................................ 11 1.2 Overall Comments: .............................................................................................................. 11 1.3 Strengths.............................................................................................................................. 11 1.4 Concerns .............................................................................................................................. 12 1.5 Conclusion ........................................................................................................................... 12 2 Signature by partners who recommend the sector plan for FTI endorsement ............................ 13 3 Background ................................................................................................................................... 14 4 Country Background ..................................................................................................................... 16 5 Education Sector Background ....................................................................................................... 18 5.1 Sector Status 2008/09 ......................................................................................................... 18 5.2 Ghana’s Progress on Education for All (EFA) Goals and Education Millennium Development Goals (MDGs) ............................................................................................................. 24 5.3 General Balance of the Sector ............................................................................................. 25 5.4 Financing of the Sector ........................................................................................................ 28 5.5 Reform Capacity .................................................................................................................. 35 6 Sector Documentation and Knowledge Gaps ............................................................................... 37 7 Consultation Process..................................................................................................................... 40 8 Overview of the Education Strategic Plan, 2010 to 2020 ............................................................. 42 8.1 Structure of the Strategic Plan ............................................................................................ 42 8.2 Legislation and Policies underpinning the ESP .................................................................... 43 8.3 Improved Access to Educational Services ........................................................................... 44 8.4 Improved Quality and Relevance of Basic Education .......................................................... 44 8.5 Teachers .............................................................................................................................. 45 8.6 Construction of Facilities for Basic Education ..................................................................... 45 8.7 Balance of Sub-Sector Development ................................................................................... 45 8.8 Gender ................................................................................................................................. 46 8.9 argets of the ESP .................................................................................................................. 46 8.10 Decentralised Administration of Education ........................................................................ 48 8.11 Efficiency Measures ............................................................................................................. 48 8.12 Capacity Development ........................................................................................................ 49 8.13 The Monitoring Process ....................................................................................................... 49 3 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 9 Appraisal of the Education Strategic Plan, 2010 to 2020 ............................................................. 50 9.1 Structure and Coverage of the Plan .................................................................................... 50 9.2 Legislation and Policies underpinning the ESP .................................................................... 51 9.3 Improved Access to Educational Services ........................................................................... 52 9.4 Improved Quality and Relevance of Basic Education .......................................................... 53 9.5 Teachers .............................................................................................................................. 56 9.6 Construction of Facilities for Basic Education ..................................................................... 63 9.7 The Balance of Sub-Sector Development ............................................................................ 65 9.8 Gender ................................................................................................................................. 65 9.9 Targets of the ESP ................................................................................................................ 66 9.10 Decentralised Administration of Education ........................................................................ 67 9.11 Efficiency Measures ............................................................................................................. 68 9.12 Capacity Development ........................................................................................................ 70 9.13 Monitoring Progress ............................................................................................................ 71 10 Issues for the Education Strategic Plan.................................................................................... 73 10.1 Structure and Coverage of the Plan .................................................................................... 73 10.2 Legislation and Policies underpinning the ESP .................................................................... 74 10.3 Improved Access to Educational Services ........................................................................... 74 10.4 Improved Quality and Relevance of Basic Education .......................................................... 75 10.5 Teachers .............................................................................................................................. 75 10.6 Construction of Facilities for Basic Education ..................................................................... 76 10.7 The Balance of Sub-Sector Development ............................................................................ 76 10.8 Gender ................................................................................................................................. 76 10.9 Targets of the ESP ................................................................................................................ 76 10.10 Decentralised Administration of Education .................................................................... 76 10.11 Efficiency Measures ........................................................................................................ 77 10.12 Capacity Development .................................................................................................... 77 10.13 Monitoring Progress ........................................................................................................ 77 11 Conclusions .............................................................................................................................. 79 ANNEX: APPRAISAL OF AESOP 2012-2014…………………………………………………………………………….…………81 4 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Tables Table 1 Human development indicators for Ghana ............................................................................. 16 Table 2 Deprived districts .................................................................................................................... 17 Table 3 School enrolment ratios (percentages) ................................................................................... 19 Table 4 Enrolment disparities at primary level for selected regions (Percentages) ............................ 19 Table 5 Tertiary enrolment, 2007/2008............................................................................................... 20 Table 6 Performance of primary pupils on the National Education Assessment (NEA) ...................... 22 Table 7 Progress on MDG Goal 2: Achieve universal primary education by 2015............................... 25 Table 8 Progress on MDG Goal 3: Elimination of gender disparity at all levels of education ............. 25 Table 9 Total costs (GHc million) and percentages by sub-sector ....................................................... 27 Table 10 Recurrent expenditure by student excl. admin (in multiples of GDP per capita) ................. 28 Table 11 Resource envelope for ESP funding, by source (Selected years to 2020) ............................. 30 Table 12 Estimated ESP expenditure in relation to resource envelopes (GHcm) ................................ 30 Table 13 Cost of meeting Aide Memoire and AESOP priorities, 2011-2013 ........................................ 32 Table 14 Principal targets of the ESP ................................................................................................... 47 Table 15 ESP interventions for improved quality teaching and learning ............................................. 54 Table 16 PTR in public primary schools, 2008/09 and 2009/10 .......................................................... 58 Table 17 Percentage of trained teachers in public primary schools, 2009/10 .................................... 60 Table 18 Percentage of basic education schools with toilets and drinking water ............................... 63 Table 19 Construction of facilities in ESP Vol. 2 and AESOP ................................................................ 64 Table 20 Number of schools and classrooms, 2009/10 ....................................................................... 65 Figures Figure 1 Schools with toilets and drinking water ................................................................................. 24 Figure 2 "Mini Max ESP" (2007 base year + 2 years' inflation) ............................................................ 29 Figure 3 "Updated ESP" (2009 base year) ............................................................................................ 31 Figure 4 Sub-sector share of expenditure, 2011-2013 ........................................................................ 33 Annex: GPE Tables for Ghana 5 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Abbreviations and Acronyms AESOP AM BE BECE BoG CBT CD CF CoE COTVET CRDD DA DEO DFID DP DPG EFA EFSM EMIS ESP ESPR ESWG FCUBE FPMU FTI GAR GDP GER GES GETFund GEU GoG GPI GPRS GPS GSS HDI HIV&AIDS HQ ICT INSET IS JICA JHS KG Annual Education Sector Operational Plan Aide Memoire Basic Education Basic Education Certificate Examination Board of Governors (Senior High) Competency Based Training Capacity Development Catalytic Fund College(s) of Education Council for Technical and Vocational Education and Training Curriculum Research and Development Division (of GES) District Assembly District Education Office/Officer Department for International Development Development Partner(s) Development Partner Group Education for All Education Finance Simulation Model Education Management Information System Education Strategic Plan Education Sector Performance Report Education Sector Working Group Free Compulsory Universal Basic Education Funds and Procurement Management Unit Fast Track Initiative Gross Admission Rate Gross Domestic Product Gross Enrolment Ratio Ghana Education Service Ghana Education Trust Fund Girls Education Unit Government of Ghana Gender Parity Index Growth and Poverty Reduction Strategy Global Positioning System Ghana Statistical Service Human Development Index Human Immunodeficiency Virus and Acquired Immune Deficiency Syndrome Head Quarters Information and Communication Technology In-Service Education of Teachers Inclusive and Special (Education) Japan International Cooperation Agency Junior High School Kindergarten 6 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 M&E MDAs MDBS MDG MoE MoFEP MTEF n.a. NCTE NDP NEA NER NESAR NF NGO NIB NIU NSS PBME PESPR PETS PPP PPVA PTPDM PTR REO SC SFL SMC SMTDP SpED STD STME SWOT TA TE TED TVET UIS UNESCO UNICEF USAID UTDBE WAEC WFP Monitoring and Evaluation Ministries, Departments, and Agencies Multi-Donor Budget Support Millennium Development Goal Ministry of Education Ministry of Finance and Economic Planning Medium Term Expenditure Framework Not available National Council for Tertiary Education National Development Plan National Education Assessment Net Enrolment Ratio National Education Sector Annual Review Non-Formal (Education) Non-Governmental Organisation National Inspection Board National INSET Unit National Service Scheme Planning, Budgeting, Monitoring and Evaluation Preliminary Education Sector Performance Report Public Expenditure Tracking Survey Public-Private Partnership Participatory Poverty and Vulnerability Assessment Pre-Tertiary Teacher Professional Development and Management Pupil Teacher Ratio Regional Education Office/Officer Second Cycle School for Life School Management Committee Sector Medium-Term Development Plan Special Education Division (of GES) Sexually Transmitted Diseases Science, Technology and Mathematics Education Strengths, Weaknesses, Opportunities, Threats Technical Assistance Tertiary Education Teacher Education Division (of GES) Technical and Vocational Education and Training UNESCO Institute for Statistics United Nations Education, Scientific and Cultural Organisation United Nations Children’s Fund United States Agency for International Development Untrained Teachers Diploma in Basic Education West African Examinations Council World Food Programme 7 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 8 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Prefatory Note The draft Appraisal Report was completed in February 2011, at which time Ghana’s GPE funding application lost momentum because of the lack of a firm decision on the Supervising Entity and because GPE funds were very low. In October 2011 the process was revived with the agreement that the World Bank would accept the role of Supervising Entity, and with the prospect of funds being available following the November 2011 pledging meeting. The Education Sector Group was agreed that there had been no substantial changes to the planning documents or to the state of basic education in Ghana which would justify doing a fresh Appraisal of the Sector Plan. Consequently, only the following sections of this Appraisal Report have been changed in any material way since the GPE Secretariat saw, and commented on, the draft report in February 2011: 1 Appraisal and endorsement of the Education Sector Plan 2010-2020. 5.4 Financing of the sector: A paragraph has been added. 10 Issues for the Education Sector Plan: Extensively revised. 11 Conclusions: The third paragraph has been added for consistency with the paragraph added to 5.4. 9 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 10 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 1 Appraisal and Endorsement of the Education Sector Plan 2010-2020 1.1 Country: Ghana 1.2 Overall Comments: The local Development Partner (DP) Group has reviewed Ghana’s Education Strategic Plan (ESP), covering the period from 2010 to 2020, through a series of informal consultations and discussions of the Education Sector Working Group. The ESP outlines the policy framework and strategies for attaining the sector goals, and includes broad cost estimates. For the full Plan period there is a GH¢7.2 billion shortfall. The three-year Annual Education Sector Operational Plan (AESOP) for 2011-13 projected a GH¢2,478 million shortfall for that period, of which GH¢1,346 million represented the basic education funding gap (averaging GH¢449 million p.a.). The AESOP for 2012-14 projects a funding gap of GH¢386 million for the single year 2012 for basic education (combined with special education). 1.3 Strengths The ESP is comprehensive. It builds on the previous ESP (which was designed for the period 2003 to 2015) and is aligned to national planning documents such as the Growth and Poverty Reduction Strategy (GPRSII), and to international undertakings such as the Millennium Development Goals (MDGs) and the Education for All (EFA) Dakar goals. The period 2010-12 has seen a consensus on the problem of teacher absenteeism and has resulted in a consolidation of effort to address the issue including the establishment of the National Inspectorate Board and greater emphasis on the SMCs (a randomised evaluation of this is underway) and the launch of a nationwide teacher report card system. The costs are determined not only by efforts to expand access and to improve quality, but also by measures that will bring greater efficiency and equity to the education system, although the interventions in the interests of efficiency are not expected to make a large impact in the short term. The three-year operational plan (AESOP) is strongly influenced by the priorities set during the most recent National Education Sector Annual Review (NESAR). The GPE Fund (FTI) application process and resources provide a catalyst to help Ghana move to more coordinated and harmonized programme implementation. In 11 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 this manner the resource provided would be multiplied in terms of the impact this would have on the more efficient use of funds flowing to the sector, significantly increasing value for money and reducing transaction costs on government staff. 1.4 Concerns Available finance is unlikely to allow full implementation of the plan over the ten-year period, which will require a careful approach to prioritisation. There is the danger that, if deliberate decisions are not taken on what is to be funded, the main priorities may be missed. The financing model needs clear milestones for cost savings and increased value for money if the targets are to stay on track. Ghana has a strong evidence base, including a recent Participatory Poverty and Vulnerability Assessment (PPVA). This available data corroborates the need for greater prioritisation of the resources to the North and measures for gender equity and improving pedagogy. Several of the policy documents which should be giving firm support to the ESP include provisions for which implementation costs have not been determined. The equitable deployment of teachers was identified as a problem eight years ago, and has still not been adequately addressed. Political leadership will be required to implement agreed reforms. The ESP expects expenditure on the tertiary sector, as a proportion of the MoE budget, to decline by nearly a third over the Plan period. There are as yet no clear procedures for ensuring that this will happen; and if it does not, other sub-sectors will suffer. 1.5 Conclusion The ESP can be regarded as credible. But implementation will have to be carefully monitored at more frequent intervals than the annual review, with remedial action as soon as slippage is detected. The government is defining stretching but achievable targets along with capacity building interventions. The Education Sector Working Group (ESWG) should play a role in this monitoring, not just of targets, but also of processes. 12 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 2 Signature by partners who endorsed the Education Strategic Plan 2010-2020 13 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 3 Background Ghana is a signatory to the Education for All (EFA) goals adopted in Jomtien in 1990, and since 20041 has been a member of the EFA Fast Track Initiative (FTI) and recipient of financial assistance from the EFA FTI Catalytic Fund (CF). These benefits were based on a positive appraisal of the country’s Education Strategic Plan (ESP) covering the period 2003 to 2015. Following the publication in 2007 of a Government White Paper on the reform of the Education Sector and the enactment of new Education legislation in 2008, the Ministry of Education (MoE) prepared a new ESP to cover the period 2010 to 2020. This plan is now appraised for the country’s continued membership of the Fast Track Initiative and for the submission of a proposal for further assistance from the EFA Fund.2 In his foreword to the Plan the Minister of Education states that it aims to ensure that education makes a positive and permanent contribution to Ghana’s national development plans and to achieving the international development goals. It is aligned to the broad goals of universal basic education and poverty reduction. It attempts to actualise the Ministry’s mission “To provide relevant education with emphasis on science, information, communication and technology to equip individuals for selfactualisation, peaceful coexistence as well as skills for the workplace for national development”. The Development Partner Group (DPG) has cooperated with the Ministry of Education since 2003, and took responsibility for the 2003 appraisal. The DPG meets regularly with members of Government to form the Education Sector Working Group (ESWG), which addresses educational matters of mutual interest. It is chaired by the Chief Director and the Ministers attend for specific topics. The Ministry prepares an annual preliminary education sector performance report (PESPR) which is discussed during the mid-year national education sector annual review meeting (NESAR), after which a final version of the sector performance report (ESPR) is produced, together with an Aide Memoire which captures the most important matters to be followed up. NESARs have been held annually since 2004. There is agreement that these need to be brought forward to align with other MDAs’ views and the MDBS PAF. The momentum to pool resources builds on the recommendations from the GoG donor partner and civil society meeting in Akosombo in 2010 to discuss the new Aid Policy and financing plans. During the regional education reviews in April 2009, and at the 2009 NESAR, technical working groups provided inputs to a draft of the ESP 2010-2020. 1 Ghana was invited in 2002 to join the EFA FTI, and submitted a proposal in August 2003 which was appraised by DPs in November 2003. 2 Previously the EFA Catalytic Fund. 14 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 International and national academics with a strong research history on education in Ghana also provided inputs. An education finance simulation model (EFSM) was used to project the likely resource envelope and likely costs for the plan period and began the political debate on the more detailed cost savings required. This appraisal report is prepared in accordance with the FTI Guidelines for Appraisal of the Primary Education Component of the Education Sector Plan, adapted to the Ghanaian context where necessary. The appraisal has been ongoing since the second quarter of 2010, with inconsistencies and omissions in the ESP documents brought to the attention of the MoE. Some of the most serious have been rectified in the most recent draft of the Plan, while others are being jointly addressed by the MoE and DPG. 15 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 4 Country Background On the 20093 Human Development Index (HDI) Ghana was ranked 152nd out of 182, two places ahead of Mauritania and six places ahead of Nigeria which, apart from Cape Verde in 121st place, were the only other West African countries in the “Medium Human Development” grouping of countries. The following year (2010) Ghana was ranked 130th out of 169, and had slipped into the “Low Human Development” category, along with Mauritania and Nigeria. Preliminary results of the 2010 Population and Housing Census giver the total population as 24.2 million, of which 51.3% is female.4 Human development indicators for Ghana are summarised in Table 1. Table 1 Human development indicators for Ghana Indicator 2000 2007 2008 19.3 22.9 24.3 -- -- -- 0.495 0.526 0.467 Life expectancy at birth (Female) 58.1 57.4 Life expectancy at birth (Male) 55.5 55.6 Adult literacy rate (Female) 62.9 58.3 Adult literacy rate (Male) 80.3 71.7 GDP per capita (US$ PPP) 1964 1334 1385 36 20 18 Population below income poverty line of $1.00 per day 44.8 -- -- Population below income poverty line of $1.25 per day -78.5 30 30 Population below income poverty line of $2.00 per day 53.6 -- Population below national poverty line 2000-2006 31.4 28.5 28.5 Gini index 40.7 42.8 42.8 Population (million) % female HDI Population not using an improved water source (%) } 57.1 } 65.8 Source: UN. Human Development Reports 2002 (for 2000 data), 2009 (2007), 2010 (2008). Note: Population for 2008 is estimate for 2010. Poverty line data for 2000 is for "most recent year in the 1983 to 2000 range". The country reported a 4.7% growth in real GDP for 2009, with the agricultural sector exceeding expectations at 6.2% growth, while the industrial and services sectors, at 3.8% and 4.6% respectively, fell short of targets.5 The most recent Living Standards Survey, using 2005 data, reported that the lowest quintile, with an average household size of 6 members, accounts for less than 10% of total annual expenditure, while the highest quintile, with an average household of 3 members, accounts for 46%. Regional averages for mean annual per capita expenditure ranged from GH¢166 (for the Upper West Region) to GH¢1,050 (Greater 3 The 2009 Human Development Report uses 2007 data. The HDI is a composite measure of life expectancy, adult literacy, and per capita income. 4 Based on the 2000 Census the population projection for mid-2010 was 23.95 million. 5 MoFEP, Nov. 2009. Macroeconomic performance for 2009. 16 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Accra), with a national average of GH¢644. 6 The final draft of the Medium-Term National Development Policy Framework: Ghana Shared Growth And Development Agenda (GSGDA), 2010-2013,7 has recently been released, … … The PPVA indicates wide geographical disparities and food insecurity with some regions experiencing a move from two to one crop per year. This has increased seasonal migration particularly for girls and has affected the ability of families to enrol or retain their children in the education system. The country is divided into 170 administrative districts, of which 61 are classified by the MoE as “deprived”, being the lowest 61 on a ranked list based on average ranking on a dozen criteria, such as percentage of schools needing major repairs and number of core textbooks per pupil, but not on socio-economic criteria. As the number of districts has increased, no reassessment has been done: 8 a deprived district split in two resulted in two deprived districts. The number of deprived districts per region is indicated in Table 2.9 Table 2 Deprived districts Districts Region Total Deprived Ashanti 27 5 Brong Ahafo 22 7 Central 17 5 Eastern 21 3 Greater Accra 10 - Northern 20 19 Upper East 9 7 Upper West 9 3 18 17 4 8 170 61 Volta Western Total Source: Undated list from MoE. Line ministries have delegated a range of functions to district education offices, some of which have been operating fairly independently of the district administrations which is directly responsible to the district council. The goal is to achieve devolution of functions to an integrated district administration. 6 GLSS 5, pp.94-5. This replaces the GPRS II, which covered the years 2006 to 2009. 8 Districts have not been reassessed since 2001: those at the bottom of the ranking list were then declared deprived, and have remained “deprived”. An MoE spokesperson explained that no re-assessment has been done because the classification of districts into deprived and non-deprived was for the implementation of the Component 1 of the Pilot Programmatic Scheme(PPS) of the Education Sector Project (EdSEP), which will end in October 2011. Thereafter, an evaluation of the project will enable a re-assessment of districts. UPDATE: In February/March 2012, as part of the GPE application process, reassessment was being undertaken. 9 EMIS 2009/10 reports on 138 districts. 7 17 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 5 Education Sector Background 5.1 Sector Status 2008/09 Basic education in Ghana consists of two years of kindergarten followed by six years of primary and three years of junior high school. The Government’s intention is that all children should have the opportunity to complete eleven years of basic education. After junior high there are limited opportunities for further study in a senior high school or vocational training institution.10 Formal education is provided in public and private institutions, with private enrolment accounting for 19.5% of the total in kindergarten, 18.6% in primary, 17.4% in junior high, 10.8% in senior high, and 39.7% in technical and vocational institutions.11 EMIS has no data on private tertiary institutions.12 Trends in school enrolment and the flow of pupils through the system are given in Table 2A of the annex to this report. Some of the significant data are highlighted in this section. 5.1.1 Enrolment in kindergarten, primary and high schools Between 2002/0313 and 2008/09 primary and junior high enrolments increased dramatically, partly as a result of the elimination of school fees. Primary gross enrolment ratio (GER) was only 75.7% in 2002/03, while junior high GER was 64%. Table 3 shows the GER and net enrolment ratio (NER) data at national level, for 2008/09 and 2009/10. The NER for the primary level suggests that the target of full primary enrolment by 2015 may be unattainable, despite the good progress made from an NER of 59.1% in 2004/05 to 88.5% in 2008/09. The gross admission rate (GAR) for the first grade of primary was 102.9% in 2008/09 and 101.3% in 2009/10. With Government’s intention of encouraging full transition to junior high school (JHS) and a high completion rate, both the GER and NER for junior high are discouraging. In fact, the NER has stagnated in recent years at around 48%. 10 The total full-time enrolment in 2009/10 in public and private SHI and TVET Intermediate was roughly 68% of JH3 enrolment in the same year. A spokesperson for the MoE stated that “Government has indicated recently that when the demand is high it can provide the facilities to cater for the need,” which might mean that socioeconomic factors restrict passage to SHS/TVET. 11 Calculated from enrolment data for 2009/10, EMIS. TVET data for full-time students (26.6% for part-time students). EMIS has no data on private tertiary institutions. 12 Data on private tertiary institutions collected by the National Council for Tertiary Education (NCTE) was not made available when this Appraisal was being prepared. 13 The academic year runs from September to August. 18 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 3 School enrolment ratios (percentages) GER Level NER 2008/09 2009/10 2008/09 2009/10 Kindergarten 92.9 97.3 63.6 58.7 Primary 94.9 94.9 88.5 83.6 Junior High 80.6 79.5 47.8 47.5 Senior High 33.9 36.1 17.7 18.5 Source: EMIS 2008/09, EMIS 2009/10 Table 4 shows the variation across four selected regions for measures of primary enrolment. The enrolment data for the Northern and for the Upper West regions illustrate gender disparities, in the one case favouring boys, and in the other girls. The Central Region apparently has an NER close to 100%; in 2008/09 it was reported as 104.5% for boys and 102.7% for girls, which calls in question the accuracy of the population projections by age cohort14 that are used for the calculation of the GER and NER.15 The statistics for the Greater Accra Region show that urban areas do not necessarily provide easier access to education. Variations are even greater when districts are compared, showing the importance of using strategies appropriate to the particular situation when trying to increase enrolment. Table 4 Enrolment disparities at primary level for selected regions (Percentages) Region GER Male GER Female NER Male NER Female Central 110.8 107.6 97.9 96.0 Greater Accra 86.6 85.1 76.5 75.1 Northern 102.4 89.4 88.1 77.4 Upper West 98.1 102.4 83.7 88.0 National 96.7 93.0 84.9 82.3 Source: EMIS 2009/10 Children with special needs16 are catered for in special schools or units, or are mainstreamed in appropriately equipped schools. In 2008/09 5,969 pupils (40.6% female) were enrolled in 200 special schools or units.17 Those of primary school age who are not yet in school, or who have dropped out, will be among the most difficult to reach, and special measures appropriate to their particular circumstances, may have to be devised to get them into school.18 14 The 2009 ESPR notes that migration into or out of a district will not necessarily have been properly reflected in projections of national census data. Para.2.11. 15 Age cohort projections are based on the 2000 population census. 16 Information in this paragraph is from the ESPR 2009, Tables 14, 15 and 16. 17 And, from the same source, 339 pupils (36.9% female) were reportedly mainstreamed in 479 “inclusive” primary and junior high schools. A correction of this data could not be obtained. 18 ESP Vol. 2, BE2 addresses the plight of the excluded: “out-of-school, hard-to-reach, truants, intra-cycle dropouts and adolescent mothers”. NF1 adds street children to the list. 19 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 5.1.2 Adult literacy and non-formal education The adult literacy rate in 2007/08 was only 62.0%, up from 53.4% in 2003/04.19 5.1.3 Post-basic education Access to senior high school is constrained by a shortage of facilities. Pupils wishing to proceed from junior high to public senior high schools are placed by a newly introduced computer system, which has apparently caused widespread dissatisfaction. Female enrolment as a proportion of total enrolment stagnated around 44% for the three years up to 2008/09.20 rising marginally to 44.7% in 2009/10. There are wide regional disparities in the gender inequality across the country. In a bid to promote technical and vocational education and training (TVET) and make it more relevant to national needs, a Council for Technical and Vocational Education and Training (COTVET) was established in 2006, managed by a board of which half the members are not from the public sector. Since vocational institutions attract adults and youths who have not necessarily done well in formal school, the curriculum is also intended to ensure that graduates are functionally literate and numerate.21 In 2009/10 the proportion of female full-time students at public and private institutions was 37.2% and 64.9% respectively.22 Tertiary enrolment in public institutions is shown in Table 5. There are six public universities and ten polytechnics. As the graduate unemployment rate climbed, with absorption capacity of the economy and the poor quality of graduates cited as the reasons, Government decided to move to a 60:40 ratio in favour of science and technology.23 It will be observed from the table that the gender balance is strongly skewed in favour of males. Table 5 Tertiary enrolment, 2007/2008 Total % female % of total in science/technology Public universities 93,973 33.7 37.7 Polytechnics 34,448 29.6 29.9 4,183 44.3 0.0 132,604 33.0 34.5 Professional institutions Total Source: ESPR, 2009, Tables 12 & 13. 19 This is the most recent data available, from the PESPR 2010. ESP, Vol. 2, NF2 deals with adult literacy, but with little sense of urgency. 20 ESPR, 2009, para.2.5. 21 ESPR, 2009, para.2.6 (which is noted in the Report as being “incomplete”). 22 EMIS 2009/10. 23 ESPR, 2009, para.2.7. 20 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Government intends to establish two new universities (TE4),24 with a large portion of the cost to be derived from a public private partnership (PPP),25 as well as an Open University (TE5). 5.1.4 Teacher education Teacher training colleges have been reclassified as colleges of education (CoE) and are regarded as part of the tertiary sub-sector. The ESP 2010-2020 has set the target for the proportion of qualified primary and junior high teachers at 95% (BE14). The pre-service training course for primary and junior high teachers is of three years’ duration, of which the first two years are spent at the college, and the third year attached to a school for practical training. Teachers are prepared to teach all subjects in the curriculum and techniques for multi-grade teaching are included. Seven of the 38 public CoEs offer specialised training in kindergarten teaching. A four-year distance education programme, the Untrained Teachers Diploma in Basic Education (UTDBE), was introduced in 2004 to provide all untrained teachers with a qualification. 5.1.5 Quality of primary education The National Education Assessment (NEA) tests pupil proficiency in English and in mathematics in the third and sixth grades of primary school (Table 6). While the performance in 2007 was poorer than that in 2005 for P3, it was slightly better for P6. The most recent results show an overall improvement, but the results are still well below what would be acceptable.26 24 References to targets, strategies, and activities in the ESP, Vol. 2, are to the numbered strategies (BE, SC, IS, NF, TE, EM) rather than to page numbers. 25 MoFEP, Nov. 2009. Highlights of 2010 budget. 26 Table 5 gives the percentage of pupils achieving proficiency; Table 2B of the Annex gives mean scores. 21 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 6 Performance of primary pupils on the National Education Assessment (NEA) Subject English P3 Mathematics P3 English P6 Mathematics P6 % achieving Minimum Proficiency competency Year Mean score (%) 2005 38.1 50.5 16.4 2007 37.6 50.1 15.0 2009 40.2 57.6 20.0 2005 36.6 47.2 18.6 2007 35.0 42.6 14.6 2009 41.8 61.2 25.2 2005 43.1 63.9 23.6 2007 44.2 69.7 26.1 2009 48.2 76.9 35.6 2005 34.4 42.7 9.8 2007 35.7 46.2 10.8 2009 39.6 61.9 13.8 Source: ESPR, 2009. Table 26 (2005 & 2007); BECAS report summary 2009, NEA. Among the main inputs that influence quality are teacher qualifications, pupil teacher ratios (PTR), time on task, and the availability of appropriate teaching and learning materials, including textbooks. The proportion of trained teachers in public primary schools is given in Table 16.27 For the country as a whole, fewer than 60% of teachers were qualified28 in 2009/10, with a significantly higher proportion of female teachers than male teachers being qualified. The Northern Region had the poorest showing, and Greater Accra the best. Teachers on the payroll are supplemented by National Youth Employment Programme (NYEP) and National Service Scheme (NSS) teachers who are assigned to schools for a one- to twoyear period. With kindergarten having only recently been expanded, close to 70% of kindergarten teachers lack formal qualifications.29 The pupil teacher ratio (PTR) at primary level (public schools only) is given in Table 15.30 The national average is 31 pupils per teacher for 2009/10. But national averages hide a wide range of disparities. Regional averages ranged from 28 (Ashanti and Brong Ahafo) to 40 (Upper East). Districts show even greater variation: in 2009/10 the district that was best off had an average PTR of 15, while the worst-off district had a PTR of 64. For kindergartens the regional range in PTR is from 27 (Brong Ahafo) to 54 (Upper East), 27 In section 9.5.4, below. On the assumption that the EMIS reference to “trained” teachers is equivalent to “qualified”. 29 EMIS 2009/10. 30 In section 9.5.1, below. 28 22 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 a range of 27 percentage points, with the national average at 34.31 With the increasing importance of two years of kindergarten as a means to ensuring quality primary education, the trend will have to be watched carefully to ensure that teachers are not faced with the impossible challenge of over-large classes. Owing largely to a high level of teacher absenteeism, time on task has been estimated to be as low as 39% of available class time.32 Textbooks for the three core subjects are purchased in bulk and distributed to schools with no provision for supplementary orders or deliveries. Even though primary pupils are not allowed to take textbooks home, it is inevitable that the book stock of some schools will have to be topped up to cater for increased enrolment. In 2008/09 the average number of textbooks per primary pupil in the three core subjects was 1.6, and per junior high pupil, 2.1. In 2009/10 the same ratio was reported for primary pupils, but for junior high pupils the ratio had dropped to1.5.33 The textbook policy has subsequently been revised and funding examined for re-stocking on a periodic basis. Physical conditions also play a role. In 2009 2,502 primary schools had classes taught under trees,34 which would make teaching impossible in wet weather. Government pledged to provide additional classrooms over the three years from 2010 to eliminate the need to teach “under trees”.35 The proportion of basic education schools with toilet facilities and with drinking water is shown in Figure 1. Almost half the public schools lack toilet facilities.36 31 Public kindergartens only. EMIS 2009/10, Table 3.1.14. ESP, BE16. Note: References to “ESP” are to the ESP 2010-2020 unless otherwise stated. 33 EMIS. Regional variations for 2008/09 were in the range 1.4 to 1.8 for primary, and 1.9 to 2.3 for junior high. For 2009/10 the ranges were 1.4 to 1.7 and 1.3 to 1.6, respectively. 34 MoFEP, 18 November 2009.Budget speech for 2010 fiscal year, para.140-4. 35 Budget speech, para.144. 36 Update: According to 2010/2011 EMIS data, the target for access to drinking water in the ESP has been achieved, though the proportion of schools lacking toilets remains virtually unchanged. 32 23 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Figure 1 Schools with toilets and drinking water 100% 80% 60% Kindergarten Primary 40% Junior High 20% 0% Toilets Drinking Water Public Schools Toilets Drinking Water Private Schools 5.2 Ghana’s Progress on Education for All (EFA) Goals and Education Millennium Development Goals (MDGs) Ghana has pledged to achieve tangible and quantifiable progress by 2015 in key development areas, as embodied in the six Education for All (EFA) goals and in the Education Millennium Development Goals (MDGs). Progress towards achieving the six EFA goals has been uneven. The Government has addressed the expansion of early childhood care and education and is striving to provide free and compulsory primary education for all. There has been reasonable progress with expanded access, but access for children from disadvantaged communities and those with special educational needs lags behind. The provision of education of good quality in public schools is still proving elusive and lessons from major quality initiatives, such as USAID’s EQUALL, need to be applied on a national scale. DFID funded research from EdQual37 showed the need for better focus on school management and leadership if any of the improvements in pedagogy are to be realised. The goal of gender equality among pupils in basic education is likely to be achieved – at least at national level - by 2015 if investments are sustained. The challenge is for access and retention at the secondary level and beyond. Addressing gender based violence in schools still requires a concerted effort. Adult literacy is not showing the required level of improvement, nor is the promotion of life skills for adults, which is often linked to literacy programmes. Life skills for children in basic education are addressed in the curriculum, but are dependent upon the quality of teaching. A national focus on pedagogy and associated learning and teaching materials is required with efforts to 37 E.g. Oduro, G. a.o.: Examining education leadership and quality in developing countries, EdQual, 2007; Bosu, R. a.o.: School leadership and social justice: evidence from Ghana and Tanzania, EdQual, 2009. 24 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 bring down unit costs of existing programme so that they are affordable for wide scale implementation and sustainability. Ghana’s progress towards meeting the two education MDGs may be judged by the proxy indicators in Tables 7 and 8. Using the gross enrolment rate for the sixth year of primary as a measure of completion38 gives a more generous result than would be achieved by using the reconstructed cohort method (i.e., survival rate to final grade of primary education, which is a global MDG indicator). From Table 8 it is clear that female students are still strongly under-represented in tertiary education, and to a lesser extent in senior high school. Table 7 Progress on MDG Goal 2: Achieve universal primary education by 2015 Indicator Year 2002 2005 2008 2009 Primary gross enrolment rate (GER) (%) 80 88 95 95 Primary net enrolment rate (NER) (%) 56 69 89 84 Primary completion rate (%) (GER P6) 66 79 88 87 Source: Education Strategic Plan 2010-2020; EMIS 2009/10 Table 8 Progress on MDG Goal 3: Elimination of gender disparity at all levels of education Indicator Year % female 2002 2005 2008 2009 Primary school 47 47 49 49 Junior high school 45 44 47 46 Senior high school 41 43 44 44 University 29 35 34 37 Source: Education Strategic Plan 2010-2020; EMIS 2009/10 5.3 General Balance of the Sector The preface to the Growth and Poverty Reduction Strategy, 2006-2009 states the need for a labour force “which is equipped with more than the basic levels of educational attainment, as defined in the MDG goals. This is in order to support an economy which can then realistically aim to achieve rapid progress in the income status of its citizens.”39 It is to be expected, then, that the proposed education interventions40 would include senior high school, TVET, and tertiary education besides basic education and the training of teachers for this level. 38 This measure also assumes that those enrolled in P6 will successfully complete the year. GPRSII, Vol. 1, p.vi, para.27. 40 GPRSII, Vol. 1, p.42-5. 39 25 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 A similar all-embracing approach is followed with the “policy objectives” of the ESP 20102020:41 Improve equitable access to and participation in quality education at all levels Improve quality of teaching and learning Bridge gender gap in access to education Improve access to quality education for people with disability Promote science and technical education at all levels Strengthen links between tertiary education and industry Mainstream issues of population, family life, gender, health, HIV/AIDS/STI, conflicts, fire & road safety, civic responsibility, human rights, and environment in the curricula at all levels Improve management of education service delivery. All but the sixth objective are very broad, relating to “all levels”, and none gives any indication of where the priorities lie. As the Growth and Poverty Reduction Strategy observes, “a holistic package of interventions have been identified as priorities”.42 Within the broader framework, the following are given as “guiding principles” for the ESP:43 To eliminate gender and other disparities that arise from exclusion and poverty To cater for excluded children in mainstream schools whenever possible To improve the quality of learning and teaching, and to promote the culture of lifelong learning at all levels and for all ages To modernise and extend ICT, science education, technical and vocational education and training, and skills development at all levels To strengthen all forms of tertiary education To develop an effective, efficient and properly rewarded teaching service To devolve delivery and fiscal systems of 1st and 2nd cycle of education to District Assemblies To ensure periodic review of education grants and allowances To make efficiency savings in the education system To strengthen monitoring and accountability in the education sector, with a note that “[ensuring] universal access to 11 years of quality basic education with increased, affordable, equitable access to senior and tertiary education” remains an 41 Volume 1, p.14. GRPSII, para.4.3. 43 Volume 1, p.22. 42 26 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 essential priority.44 The ESP attempts to do justice to the many priorities by allocating relative weightings to the recurrent budget for the different sub-sectors, taking into account the targets set in the Plan, as shown in Table 9. Table 9 Total costs (GHc million) and percentages by sub-sector Sub-Sector Recurrent And Capital 2011 2013 2015 2020 % of total (in 2015) 1,550 1,794 2,072 2,017 62.4% Kindergarten 207 253 300 406 9.0% Primary 819 943 1,069 1,031 32.2% Junior High 524 599 702 580 21.1% 444 536 629 777 18.9% Senior High 358 392 415 503 12.5% TVET 80 138 205 264 6.2% Apprenticeship 6 7 8 10 0.3% Colleges of Ed 51 46 38 34 1.2% Study leave 42 27 12 13 0.4% 6 10 13 23 0.4% Special Education 19 27 37 67 1.1% Tertiary Education 391 382 363 434 10.9% Management 157 158 158 156 4.8% 2,658 2,981 3,322 3,524 100% Basic Education Second Cycle Edn. Non-formal Edn. Total Source: ESP, Vol.1, Table 5.3 From this overall budget for the full ESP and the projected number of students at the various levels of the system, it is possible to extract the recurrent expenditure per student, as set out in Table 10.45 44 Ibid. Per pupil costs for ISE in dedicated institutions had not been calculated. Pupils mainstreamed are included in the relevant sub-sector. 45 27 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 10 Recurrent expenditure by student excl. admin (in multiples of GDP per capita) 2009 2011 2013 2015 2020 2015 Rank 8 Kindergarten 0.04 0.08 0.10 0.11 0.10 Primary education 0.18 0.17 0.17 0.18 0.15 6 Junior high 0.29 0.32 0.29 0.26 0.19 5 Senior high 0.70 0.54 0.50 0.47 0.43 3 0.85 0.64 0.44 0.61 4 0.73 0.73 0.73 0.73 0.73 2 0.05 2.44 0.08 2.01 0.11 1.71 0.13 1.45 0.19 1.08 7 1 Teacher education Technical/vocational ISE (not available) NFE Higher education Source: Volume 1, Table 5.4a. 5.4 Financing of the Sector Cost projections associated with the ESP 2010-2020 were prepared using the Education Financial Simulation Model (EFSM)46 of the Planning, Budgeting, Monitoring and Evaluation (PBME) division of the Ministry of Education, as a follow-up to discussions initiated during the 2009 Education Sector Annual Review about the financial sustainability of the proposed Education Strategic Plan 2010-2020. Using 2007 as the base year three scenarios were initially projected to generate further discussion: “Full ESP”, “Cost conscious ESP”, and “Frugal” or “Mini Max ESP”. The last and most economical of these, apparently with discussions with a wide range of stakeholders but unclear political commitment, was incorporated into Chapter 5 of the ESP. It was noted that, although the “Mini Max ESP” scenario generated a surplus of resources over expenditure (which the other two scenarios did not), there were a number of high priority programmes whose costs had not yet been determined. Figure 2 illustrates the difference between the resource envelope and expenditure in the “Mini Max ESP” scenario.47 46 EFSM is an Excel-based model, which allows the user to manipulate variables to prepare a variety of cost scenarios. 47 The figures have been inflation adjusted to shift the base year from 2007 to 2009. 28 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Figure 2 "Mini Max ESP" (2007 base year + 2 years' inflation) Million Ghana Cedi 3,000 2,500 2,000 1,500 1,000 500 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Year Envelope Expenditure Some gaps, and queries regarding data and assumptions, were left for the Ministry to resolve. By July 2010 commitment across the Ministry led to a request to development partners to provide a consultant to assist with this further work. As a consequence a new scenario was developed, here termed the “Updated ESP”, drawing on 2009 for baseline data. At the same time the capacity of staff members in the planning directorate (PBME) to use the model was enhanced. As with the 2009 exercise it proved impossible to build all the activities into the model. A revised Chapter 5 was drafted for inclusion in the ESP. The information provided in Chapter 5 of the Plan is supplemented by two other documents prepared by the consultant, “Financial model notes and users guide” and “Review of targets used in ESP documents”. In the former the need to update the model annually is stressed, while the latter highlights areas that are being rapidly addressed and incorporated into revisions to the ESP. 5.4.1 Resource envelope In 2009 over 90% of spending on public education came from domestic sources, with only 6.5% coming from DPs and other external sources. Since donor commitments for the early years of the Plan period were uncertain, the “Updated ESP” in its projections does not rely on external sources providing more than 6.5% of the overall envelope. The MoE, however, expects that external resources may account for up to 9% of the envelope for the period up to 2013. The projection assumes that GDP growth will remain constant at 5% for the Plan period, that education expenditure as a percentage of GDP will reduce from 9% in 2009 to 7.8% in 2020, and that capital expenditure will increase from 10% in 2009 to 20% in 2020. It is anticipated that oil revenues will be paid into a special fund and will not be used to bolster the budgets of line ministries. The projected resources (“Updated ESP”) are shown in Table 11. 29 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 11 Resource envelope for ESP funding, by source (Selected years to 2020) Baseline Sources Projected Resources (GH¢ million ) 2009 2011 2013 2015 2020 Domestic sources: 1,829 1,960 2,107 2,264 2,705 External sources: 121 136 146 157 188 1,950 2,097 2,254 2,422 2,893 TOTAL Source: ESP, Vol. 1, Table 5.6 The private sector contribution to education is substantial; in 2007 nineteen percent of kindergarten pupils, 17% of primary and junior high pupils, 56% of TVET and 13% of tertiary students were privately educated.48 The state provides teacher training opportunities, the curriculum, and textbooks in line with provision to government schools. Most of the private schools are beyond the financial reach of the poorest quintile. A comprehensive mapping and registration process is required to ensure a full grasp of the extent, user fees and educational outcomes of the private schools. At present these schools represent a considerable saving of public funds and make a positive contribution to admissions and enrolment ratios. 5.4.2 ESP Expenditure The expenditure required to implement the ESP exceeds the resource envelope, as will be seen from Table 12. Over the ten-year period the Plan is underfunded in the amount of GH¢7.2 billion. Table 12 Estimated ESP expenditure in relation to resource envelopes (GHcm) Year 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Resource envelope Recurrent 1,790 1,838 1,888 1,937 1,988 2,040 2,093 2,147 2,202 2,258 2,314 Capital 232 258 286 316 348 381 416 454 493 535 579 Total 2,022 2,097 2,174 2,253 2,336 2,421 2,509 2,601 2,695 2,792 2,893 Recurrent 1,772 1,909 2,021 2,112 2,221 2,316 2,365 2,441 2,523 2,609 2,685 Capital 699 749 806 869 940 1,006 724 767 813 840 839 Total 2,471 2,659 2,827 2,981 3,151 3,322 3,089 3.209 3,336 3,449 3,524 Expenditures Balance of Expenditures less Resources Recurrent 18 -71 -133 -175 -222 -276 -272 -294 -321 -352 -371 Capital -467 -491 -519 -553 -592 -625 -308 -314 -320 -305 -260 Total -449 -562 -653 -727 -815 -901 -580 -608 -641 -657 -631 Source: ESP, Vol.1, Table 5.7 The ESP notes the three factors which have made the greatest contribution to increased sector costs as (1) the requirement for trained teachers in basic education, (2) the cost 48 EFSM. 30 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 of new facilities and the maintenance of existing infrastructure, and (3) the expansion of second cycle education, particularly TVET. EMIS provides estimates of the number of classrooms in need of major repair, but this data is of doubtful value.49 When budgetary provision for capital works is limited, it is generally applied to new buildings while those needing repair become more dilapidated. The main efficiency gains which the ESP introduces are (1) the increased PTR at all levels of the school system, (2) the removal of the subsidy for teachers in training and the reduction in the numbers who will be allowed paid study leave, (3) a reduction in funding to the tertiary sector, from21% of sector expenditure in 2009 to 15% in 2020, and (4) an increase to 25% in the extent to which the private sector will cater for kindergarten and tertiary education. Efficiency gains will be made only if these measures are implemented, failing which, the budgetary deficit will grow. (1) Between 2008/09 and 2009/10 the primary PTR moved in the wrong direction, from 34 to 31. Without a clearly defined deployment procedure which is understood by all districts, there is likely to be little movement towards the target. (2) The policy on subsidies or loans to teachers in training and on fee-free tertiary education is currently confused, with different documents stating different things. If subsidies are replaced by loans, and most of the loans are not repaid, there will be no saving. (3) While the broad policy statement on the funding of tertiary education is clear, there is no indication as to how tertiary institutions will cope with the projected reduction in spending on the sub-sector (as a proportion of the overall budget). If costs are allowed to escalate during the initial years of the Plan, the target will become more difficult of attainment. (4) Government has no direct control over the number of students that will be absorbed by private educational institutions; it can only hope that this will happen. Assuming that the efficiency measures are implemented at the projected rate, the difference between the resource envelope and expenditure will match the graph in Figure 3, with the deficit peaking in 2015, after which it takes a dip before increasing at a slower rate. The deficit will also be reduced if the Government can maintain education expenditure at 9% of GDP, as in 2009. Million Ghana Cedi Figure 3 "Updated ESP" (2009 base year) 4,000 3,500 3,000 2,500 2,000 1,500 1,000 500 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Year Expenditure Envelope 49 EMIS 2009/10, Table 4a reported 100% of kindergarten classrooms to be in need of major repair, as against 44% in the previous year’s report. 31 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Under the ESWG, a new public financial management sub-sector group has been initiated and attended by members from across government and a range of DPs. This will be an important mechanism for moving forward reforms and securing political buyin required to push through the strengthening of country systems. 5.4.3 The Three-Year Implementation Plan The detailed costing of the annual education sector operational plan (AESOP) for the period 2010 to 2012, based on the ESP 2010 to 2020, was not completed. The AESOP consequently had little or no impact on activities during FY2010. The AESOP for FY2011 to FY2013 has benefited from the “Updated ESP”. Core costs were drawn from the EFSM, supplemented by programmatic costing for Aide Memoire priorities not covered by the EFSM. Some costs were drawn from the MoE’s 2011 budget request to the MoFEP; in particular, the amount included for remuneration is aligned to historical costs, which have consistently exceeded the amount allocated by the MoFEP. Over the period 2004 to 2009 overspending on remuneration has varied from 16% to 50%, and on the budget as a whole by between 12% and 45%.50 The 2011 budget requirement to Treasury exceeded the MoFEP ceiling by 1.5 billion Ghana cedi.51 The estimated cost of the AESOP in millions of Ghana cedi is set out in Table 13, with the sub-sector share of the expenditure illustrated in Figure 4. Table 13 Cost of meeting Aide Memoire and AESOP priorities, 2011-2013 Baseline MoE MoFEP This Projection request to Ceiling MoFEP Sub-Sector 2009 2011 2011 2011 2012 Basic 953.0 1,743.0 963.6 1,736.6 1,739.5 SC (&TVET) 373.0 825.0 279.1 537.2 588.9 ISE 7.5 16.6 11.5 11.9 11.9 NFE 3.7 35.7 8.1 9.4 9.4 Tertiary 451.0 990.0 323.3 344.2 344.2 Management and Sub-vented Total 2013 1,784.8 627.2 11.9 9.4 344.2 161.0 228.0 672.0 297.0 297.2 297.6 1,949.2 3,838.3 2,359.6 2,936.0 2,991.0 3,075.0 2,097.0 2,174.0 2,253.0 Projected Resource Envelope Total Finance Gap Basic Education Gap (839.0) (817.0) (822.0) (478.0) (435.0) (433.0) Figures in millions of GH cedi. Not Inflation Adjusted for 2012, 2013. The 2011 Management ceiling includes GET Fund Allocation Source: AESOP 2011-2013 (5 December 2010 draft), Table A.1 50 51 AESOP 2011-2013, p.12, from ESPR 2010. AESOP, p.11. 32 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Figure 4 Sub-sector share of expenditure, 2011-2013 70 60 Percentage 50 40 2011 30 2012 2013 20 Management and Subvented Tertiary ISE SC (&TVET) Basic 0 NFE 10 Inevitably, in the absence of detailed programmatic costing, some of the estimates are rough. Equally clearly, if money is spent strictly according to the AESOP budget, the MoE will end the financial year with a deficit. It is likely that some activities will be sacrificed to allow for overspending on the Personnel Emoluments (PE) line. There are various ways in which the cuts may happen, for example: A strong effort may be made to keep to the proportional share of each subsector as set out in the ESP. Since the PE line is underfunded and basic education draws the largest share of PE and has the largest infrastructure needs, the effect would be to restrict severely the basic education programmes that will contribute to enhancing quality, unless these can be funded from external sources. Cuts may be made by denying spending to those activities for which proper implementation plans have not yet been developed. Activities implemented early in the financial year may absorb available funds, leaving nothing for activities which were intended to take place later in the year. If the ESP as a whole is to move forward in an orderly way, any cuts should be carefully planned cuts, and any delays should be planned delays that will ensure that spending brings value for money. In subsequent years, as the plan is rolled forward, detailed budgeting for all activities should be included, and delayed activities should be brought back for implementation, if the overall objectives of the ESP are to be achieved. But also, priorities need to be reviewed on an annual basis, to avoid losing the essentials while non-necessities are paid for. The AESOP cautions against allowing personnel and capital expenditure to crowd out other priority spending, pointing out by way of illustration that the implementation of the literacy programme, the upgrading of untrained teachers, and the establishment of 33 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 the NIB together would absorb less than 0.62% of the total budget, but could contribute significantly to improving quality in basic education.52 5.4.4 Funding provided by Development Partners One of the assumptions of the EFA Fast Track Initiative is that the development partners endorsing a country’s bid for membership will themselves be committed to continuing their support to that country and will even be prepared to increase their level of assistance. On this basis, in the EFSM an assumption was made that donors would continue to fund the same proportion of the budget as in 2009. Attempts to obtain forward commitments from education sector donors as part of this appraisal exercise have met with limited success.53 Only two development partners were able to provide budget estimates for 2011 or 2012, and none beyond that date. Other DPs had not yet finalised their budgets. For support already committed, funding modalities included “project assistance”, “extrabudgetary support”, “cooperative agreement”, “earmarked funding”, and “transfers through national and regional accounts”. Much of the project or programme type assistance is not reflected in the AESOP while nevertheless aligning with the broad ESP strategies for enhanced access or quality. 5.4.5 February 2012 Update on the Funding Gap The funding gap in respect of Basic and Special Education (the focus of GPE) for the single financial year 2012 has been looked at critically, with the Budget Allocation (from the Ministry of Finance and Economic Planning - MoFEP) and the “Need” (Combined Education Sector Finance Model – EFSM - and AESOP) contrasted in the table below. Both the “need” and “provision” columns take account of Government as well as Donor funding. Salary costs in both columns are those included in the MoE’s Budget Request. This figure has been used in preference to either the figure from the EFSM or the figure in the Budget Allocation since, historically, the MoFEP pays the salaries, even though this always results in an overrun on the budget. The comparison is thus, effectively, between capital expenditure and recurrent expenditure other than salaries. It would appear that the MoE’s Budget Request for capital and other recurrent expenditure was not realistic. As the MoFEP had already warned that there would be no funds for new capital works, the MoE budgeted only for continuation of capital projects already under way. Under “other recurrent” the MoE requested funds (additional to the salary request) for a 20% incentive to retain teachers in deprived areas, and this amount was included in 52 AESOP 2011-2013, p.13. Development partners were requested at the end of June 2010 to complete a questionnaire on their financial contributions to the sector and their capacity development interventions. 53 34 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 the Budget Allocation, even though it is not clear whether such top up salaries can be incorporated into the Single Spine Salary Structure.54 On the other hand, some of the programmatic activities included in the Aide Memoire following the NESAR, and in the AESOP, were omitted from the Budget Request. Budget Allocation (GHS mil) Salaries (Budget Request) Other Recurrent Capital Total without salaries Total with salaries Combined FM & AESOP (GHS mil) 1736.79 1736.79 215.70 279.69 72.90 394.36 288.60 674.05 2025.39 2410.84 Funding Gap GHS million 385.45 USD million 240.91 % Gap Salaries Included 16.0 % Gap Salaries Excluded 57.2 The funding gap as reflected in the table is the best estimate that can be made under the circumstances. The difference between the funding gap in this Table and that in Table 13 is accounted for mainly by the inclusion of the realistic amount for remuneration in both columns of this table. 5.5 Reform Capacity The most obvious evidence of the Ministry’s lack of capacity to reform is its inability to resolve the inequitable nature of teacher deployment, even though the issue has regularly been flagged by the Ministry itself during performance reports and annual review meetings. With continuing progress on the path of decentralisation, it has become increasingly urgent that a solution be found. The annual performance report is intended to be the instrument by which the Ministry measures its own progress in a spirit of accountability and transparency. For this process to be credible, it is essential that the report should use up to date and reliable information. As the 2010 preliminary ESPR contains very little information that is recent, it is a poorer report than was the 2009 ESPR, which itself was a less thorough document than was the 54 Nor, since the MoE has not worked out criteria for deprived communities or areas (as opposed to deprived districts), is there any agreement, two months into the financial year, on which teachers would qualify for the incentive. 35 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 2008 report. If there is little expectation that identified problems will be dealt with, it may encourage an indifferent attitude towards reporting. The predictability of financial releases rests largely with the MoFEP; but it is difficult to implement reforms when there is uncertainty about the availability of funds which are essential for implementation. Delays in the implementation of activities impact on the timing of other activities, and may lead to complete failure of a planned intervention. The functioning of district offices is equally dependent on the timely receipt of approved resources. If it happens repeatedly that resources are received late or not at all, the entire budget process is undermined. Equally important for successful reform is the clear identification of priorities. The ESP in its current form makes no distinction between what is of first importance and what is relatively unimportant either within or between sub-sectors. 36 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 6 Sector Documentation and Knowledge Gaps 6.1.1 Ministry of Education documents The Ministry has developed a number of documents, some of which remain in draft, which tends to undermine their status. All policy documents provided by the Ministry for this appraisal, even those developed some years back, were still in draft. The 2009 ESPR, which should have been finalised following the 2009 sector review, was still incomplete.55 The EMIS is the primary source of data and statistics; however it is not always able to process data in a timely manner. The 2010 Education Sector Annual Review was postponed because of delays in the processing of EMIS data,56 which is coordinated at district and at regional level before being submitted to the head office. The ESP aims to strengthen the EMIS in order to establish orderly, timely, localised electronic data collection. EMIS data was available in a volume providing data at national, regional and district levels, with disaggregation by gender where appropriate. It is an essential source of information on basic education; even though private schools are not obliged to submit returns, many of them do. There are plans for running a school mapping exercise that will assign schools their GPS coordinates, to be quoted in all data collection exercises. This should ensure full compatibility of school level data. However, the wording in the ESP suggests that this data will be updated periodically rather than regularly. Annual updating would be the efficient approach. Information and documents requested for this appraisal but which could not be made available included: Guidelines and training materials for School Management Committees Broad curriculum for primary and junior high school Primary and junior high science curriculum/syllabus 2007 education reform. 6.1.2 Independent studies of the sector Ghana was fortunate in being one of the countries selected for a case study as part of the 55 For example, section 2.6 on TVET is noted as being incomplete. It is understood that the delay was directly caused by the late release by the MoFEP of the funds needed for printing the census questionnaires. 56 37 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 mid-term review of the EFA FTI. A report dated September 2009 is available57 which, while it focuses on the EFA goals, provides well-founded insights into the working of the education system, of the progress made by the Government in owning its programmes, and of the resistance of donors to harmonising their approaches and to aligning them with the expressed wishes of the Government, resulting at times in high transaction costs for the Ministry. Other relatively recent studies of the sector, or aspects of the sector, include: Education in Ghana: Improving Equity, Efficiency and Accountability of Education Service Delivery – World Bank. Draft, September 2010. Analysis of Out Of School Children in Ghana: Demographic Health Survey 20032008, UNICEF, 2010. Access to basic education in Ghana: the evidence and the issues – Akyeampong a.o., CREATE, 2007. The Financing and Outcomes of Education in Ghana - Thompson & CaselyHayford, RECOUP, 2008. Strengthening the Chain of Accountability to Improve Quality and Performance in Ghanaian Primary Schools – Casely-Hayford a.o., Link Community Development external assessment, August 2009. Ghana Public Expenditure Tracking Survey, 2007, Ghana Steering Committee for 2007 Public Expenditure Tracking Survey, 2007. Basic Education in Ghana: Progress and Problems, Final report – USAID, June 2009. Other independent studies are of less recent date. The importance of posting in becoming a teacher in Ghana – Hedges, MUSTER, 2000. This study, though it was undertaken ten years ago, describes difficulties with teacher deployment which have apparently not yet been adequately addressed. 6.1.3 Critical Knowledge and Data Gaps Although the Ghana Statistical Service (GSS) released a new set of population projections in July 2007, there is some doubt about the credibility of projections used in the calculation of net and gross admission and enrolment ratios, or on the primary completion rate, for which a GER proxy is used. With a national census planned for 26 September 2010, accurate data, which will allow the re-calculation of measures of enrolment and completion, will become available in due course. There is disparity amongst the data sets for education sector planning and budgeting which are currently available from various sources: EMIS, GES Finance, Textbook 57 Although this draft version still invites comments from interested parties, it has no gaps, and all conclusions are supported by evidence. 38 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Development, West Africa Examinations Council (WAEC). Steps will be taken to ensure that a consistent and integrated system of data collection and categorisation is established, as this will strengthen the monitoring and reporting processes. 39 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 7 Consultation Process 7.1.1 Consultation during the annual review process The education sector annual review is part of a consultative process which normally includes regional review meetings in each of the ten regions during the course of April, and a national meeting in June. The regional reviews include representatives of all the districts in the region as well as civil society representatives. The invitation list for the national review includes: Senior representatives of the Ministry of Education and the Ghana Education Service Heads of agencies of the Ministry, such as COTVET All regional directors of education A total of thirty representatives of the 170 district administrations Representatives of each of the sector development partners Representatives of the NGOs active in the sector Representatives of associations of teachers Representatives of tertiary institutions Members of the Parliamentary Select Committee on Education Members of the Ministerial Advisory Board. In 2010 the national meeting did not take place until the first week of August, as a result of difficulties in finalising reports, largely because of delays in the collection and processing of EMIS data. The Ministry plans to bring the national meetings earlier in the financial year to better match other MDAs and the MDBS review process. 7.1.2 Consultation during the compilation of the ESP 2010-2020 The preparation of the new ESP commenced in 2008.58 Concept papers and studies were commissioned in key areas. A SWOT analysis was conducted on thematic areas and inputs were received from the Ministry’s agencies and regional and district directorates of education. The draft ESP document was circulated to a wide range of stakeholders including national and international academics for debate at the regional and national review meetings during 2009, after which the document was revised and submitted to Development Partners and senior Management within the Ministry for discussion. 58 PESPR 2010, p.18-19. 40 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 During 2010 the “final” ESP document and the derivative AESOP and M&E plans were distributed for comments. Further comments were made during the 2010 ESAR, and PBME has led the process of tabling and obtaining political agreement on amendments to the plan. 41 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 8 Overview of the Education Strategic Plan, 2010 to 2020 This chapter describes the structure of the Strategic Plan and the main interventions proposed to achieve the Ministry of Education’s goals, particularly those relating to basic education. It also takes note of the way in which the implementation of the plan will be monitored. The plan is appraised in chapter 9, which follows the same sequence of sub-headings as does this chapter. 8.1 Structure of the Strategic Plan The Strategic Plan is set out in four volumes. The version of the Plan which was appraised is that dated December 2010,59 the result of revision of earlier drafts during October, November and early December 2010. The AESOP, Volume 3 of the Plan, dated March 2010, was completely superseded by a new version dated 5 December 2010. The Monitoring and Evaluation Plan, referred to as Volume 4, but not labelled as such, is dated December 2010. Volume 1 of the ESP is comprehensive for the ten-year period 2010 to 2020. Section 1.1 refers to the four areas of focus of ESP 2003-2015 and notes the rationale for moving to a sub-sector approach in the structure of the new plan. In successive chapters it covers the background to the plan, the policy basis, the broad strategic framework, decentralised delivery, the financial framework, and “Monitoring, evaluation, accountability and efficiency”. In the Minister’s Foreword, but not in the plan itself, reference is made to the nation-wide consultations which contributed to the plan. There are five annexes, providing an organogram of the system, details of the SWOT analysis conducted during the development of the plan, more extensive information on decentralised delivery, a detailed account of the cost modelling exercise, and the performance indicators and targets (including the UNESCO EFA indicators). Volume 2, also intended to cover the period 2010 to 2020, provides a detailed strategic framework, arranged under six “focal” or “thematic” areas, five of which represent sub-sectors of the system, while within each focal area sub-objectives and strategies are grouped under three headings, “socio-humanistic”, “educational”, and “economic”. Information is organised in seven columns. The main function of the volume is “to identify strategies, priorities, scopes of work and technical requirements for District Officers, and Working Groups designated by MOE and its Subvented Agencies”. These units and bodies are expected to be guided by the information in the volume as they prepare their work programmes and operational plans.60 59 Except that the version of Volume 2 provided for the Appraisal was an earlier draft. UPDATE: Volumes 1 and 2 now bear the date “February 2012”. They differ from the appraised versions only in respect of some minor editorial changes. 60 AESOP, p.2. 42 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 The third volume is the AESOP,61 the Annual Education Sector Operational Plan, which covers a three-year implementation period and is revised annually. The AESOP for 2010 to 2012 was never completed, and followed much the same format as Volume 2 of the Plan. The AESOP for 2011 to 2013 was developed to a different format. It consists of spreadsheets for each of the six focal areas of the ESP, and a narrative document with three annexes. The narrative links the AESOP to the ESP and to the priorities for 2011 as captured in the Aide Memoire of the 2010 sector review (ESAR). It also takes account of the MoE’s 2011 budget request to Treasury. (Had the AESOP been prepared on time, the AESOP would have informed the request to Treasury, and this is what should happen in subsequent years.) A summary of the priority sub-sector activities is included in the AESOP, with an Annex setting these out more fully. A further two annexes provide information on financing the AESOP and on the process of developing the AESOP. The approach taken by the MoE with support from a consultant “suggests an evolution [of the AESOP] … toward a costed work-plan that (i) uses the ESP logical framework to link priority strategies and activities with expected outcome and output targets and (ii) includes projected costs for each priority activity” (Annex 3, p.32). The resulting plan takes account of the actual activities to be implemented during the year, rather than providing a list of “indicative activities” (taken from Volume 2 of the ESP) as was the case with the previous iteration of the AESOP. The Monitoring and Evaluation (M&E) plan, 2010 to 2013, describes a multi-level monitoring approach, and contains tables for “policy level” M&E and “operational level” M&E. The roles and responsibilities of various units in relation to M&E are described.62 8.2 Legislation and Policies underpinning the ESP Education takes place in accordance with the Education Act, 2008 (Act 778), which was the legal outcome of the 2007 National Education Reform programme.63 In addition the Ghana Education Service Act, 1955 (Act 506), the National Council for Tertiary Education and Training Act, 1993 (Act 454), the Council for Technical and Vocational Education Act, 2006 (Act 718), and the National Accreditation Board Act, 2007 (Act 744) regulate aspects of educational provision. The plan summarises six of the policies developed since 2003:64 Science, technology and mathematics education (STME) ICT in education 61 The … draft for 2010-2012 was replaced by the 5 December draft for 2011-2013. The structure of the latter is outlined in Section 5.4, above. 62 Pages 31-36. 63 ESP, Vol.1, p.14. 64 ESP, vol 1, p.15-19. 43 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Technical and vocational education and training (TVET) Inclusive education (IE) and special educational needs (SpED) Tertiary education Pre-tertiary teacher professional development and management. Policy decisions have also resulted in the reclassification of teacher training colleges as colleges of education (CoE), and their inclusion in the tertiary sub-sector. The Plan indicates that a policy on distance education was to be developed in 2010 (NF7)65 and that bills for the establishment of an Open University (TE5) and two new public universities (TE4)66 were to be prepared. 8.3 Improved Access to Educational Services The Government of Ghana has introduced a two-year kindergarten course and is encouraging full enrolment for children of the appropriate age-group. Where possible, kindergartens have been attached to primary schools. It is believed that participation in the two-year kindergarten course will allow children to obtain greater benefits from their primary education than would otherwise have been the case. The Government continues to work towards achieving completion of primary education by all children, and has also set the goal of universal completion of junior high school, which will give all children eleven years of basic education. This goal automatically subsumes that of full enrolment for girls. Children with special educational needs are to be catered for as far as possible through mainstreaming but, where disabilities are severe, through special schools. Mainstreamed special education pupils may require the school to have special facilities (IS2). For improving access to kindergarten, to primary and junior high school, and to special education (where mainstreaming is not possible), the MOE proposes (1) to construct classrooms, (2) to provide transport for children in the age-range 3 to 7 years who live more than 3 km from school, (3) to provide “complementary or alternative” schooling, and (4) to assist with school feeding and the provision of uniforms. 8.4 Improved Quality and Relevance of Basic Education As part of Ghana’s efforts to reduce poverty, an undertaking was given “to put the lost quality back into the basic education that is offered to children in deprived and rural areas.”67 65 Vol. 2, p.28. Vol. 2, p.39. 67 GPRSII, Volume 1, p.1. 66 44 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Interventions to promote quality are spread across the three columns of the “outline strategies” table of the ESP: socio-humanistic, educational, and economic. They address the improvement of facilities, curriculum and teaching materials, contact time and supervision. To avoid duplication, they are covered in detail only in the appraisal chapter, section 9.4, below. 8.5 Teachers Teacher deployment, absenteeism, and training are covered in the ESP. For primary schools it is proposed to change the pupil to teacher ratio (from 34:1 in 2007) to 45:1 by 2020 (BE21), the justification being economic. Deployment is to be improved by recruiting teachers from deprived areas (BE14) and providing incentives (BE14, BE15). Absenteeism is addressed partly through shifting in-service training to the school holidays (BE15), and partly by expecting better supervision by head teachers and school management committees (SMCs) (BE19). Paid study leave is to be discontinued and replaced by an as yet undefined incentive scheme (BE18). The strategies are discussed in the appraisal chapter, below. 8.6 Construction of Facilities for Basic Education The ESP proposes the construction of additional classrooms (BE1) to expand access to schooling, or to improve the quality of education as in cases where classes are currently conducted in the open air or during an afternoon shift. The provision of toilet facilities (BE6), separate for boys and girls, is to be extended to schools presently lacking such facilities, and will apparently be automatically included when new classrooms are built. Potable water will be provided where possible. 8.7 Balance of Sub-Sector Development The ESP structures the strategic framework around five sub-sectors and the crosscutting area of education management: Basic education (BE), which includes kindergarten, primary and junior high school. Second cycle (SC) education, which includes senior high and technical and vocational education and training (TVET). Non-formal (NF) education (which includes some references to TVET). Inclusive and special education (IS). This section has a particular focus on learners whose needs have to be met in special schools and units, including those who are out of school, noting that the preferred option is for learners to be mainstreamed.68 Tertiary education (TE), which includes teacher education. 68 See, for example, BE2, BE3. 45 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Education management (EM). Other cross-cutting issues such as gender, including the elimination of sexual harassment (See section 8.8), adolescent mothers (BE2, NF1), HIV and AIDS (BE8, SC4, SC5, SC8, NF10, TE7), and preventive health care (BE5, SC4) are covered within subsectors to a greater or lesser extent. The relative weightings of the sub-sectors for recurrent expenditure are captured in Tables 9 and 10.69 8.8 Gender The first of the “guiding principles” of the ESP is stated as the elimination of gender and other disparities arising from exclusion and poverty.70 It is also stated that Ghana subscribes to the Dakar Education for All goals and the Millennium Development Goals.71 In the second volume of the Plan there are several outline strategies or indicative targets relating to gender: gender parity in BE enrolment and completion by 2012 (BE4) and in second cycle enrolment (SC1), senior high graduation rates “on a par” for males and females by 2018 (SC6), girl-friendly guidance and counselling systems in all districts (BE10, SC10), “gender appropriate” ICT skills development (SC13, NF12), improved training and deployment of teachers “with emphasis on female … teachers” (BE14), at least 40% of cohort entering tertiary education (all kinds) to be female by 2015 (TE6), with stereotyping in tertiary coursework to be eliminated (TE12). 8.9 Targets of the ESP There is no summary table of targets in Volume 1 or Volume 2 of the ESP. Table 6 of Volume 4, the M&E Plan, summarises the main targets for 2020 or 2015 which are scattered through Volume 2. (The targets in Tables 1.2.1 to 1.2.5, 1.4.1, 5.1, and 5.4 of Volume 1 are those which were set for the ESP for the period 2003 to 2015.) 69 In section 5.3, above. ESP, Vol. 1, p.22. 71 Ibid., pp.19-20. 70 46 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 14 Principal targets of the ESP Policy Objectives Indicator Target Year 100% 2015 95% 2015 35 2020 Kindergarten Equitable access GER Improved teaching & learning % trained teachers PTR Bridge gender gap % girls enrolment 50% 2015 Service delivery Proportion of enrolment in private KG 25% 2020 GER 107.4% 2012 GAR 100% 2006 NAR 90% 2009 NER 90% 2015 P6 completion rate 100% 2012 % trained teachers 90% 2015 45 2020 Primary Equitable access Improved teaching & learning PTR Core textbook ratio 1:1 2015 1000 2013 1 2015 GER 100% 2015 GAR 100% 2015 NAR 90% 2012 Community learning centres (ICT) Bridge gender gap Gender parity Junior High School Equitable access NER Improved teaching & learning 90% 2015 JHS completion rate 100% 2015 % trained teachers 95% 2020 PTR 35 2020 Core textbook ratio 1:1 2015 2000 2013 Community learning centres (ICT) Bridge gender gap Gender parity 1 2015 Service delivery Teaching hours per week 28 2020 GER (SHS) 40% 2015 GER (TVET) 15% 2015 PTR 30 2020 Gender parity (SHS) 1 2015 Gender parity (TVET) 1 2015 Teaching hours per week 25 2020 GER 12% 2015 Proportion of enrolment in private universities 25% 2015 % female enrolment 40% 2015 60% 2020 Second Cycle Equitable access Improved teaching & learning Bridge gender gap Service delivery % trained teachers Tertiary Equitable access Bridge gender gap Enrolment in science & technical Promote science & technical education disciplines Source: ESP, Vol. 4, Tables 6a to 6e 47 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 In the EFSM the targets for 2020 (or for 2015) are linearly scaled for the intervening years, starting with the baseline data in 2009. These targets are currently under revision to be made more realistic but stretching. 8.10 Decentralised Administration of Education One of the “guiding principles” of the ESP is that delivery and fiscal systems of first and second cycle education should devolve to District Assemblies.72 By 201573 or 202074 this process should be complete. The third annex to Volume 1 of the ESP, Annex C “Decentralisation transition plan” (drafted October 2009), contains detailed plans for progressive capacity building and handing over of functions to district authorities. However, there is little in the Education Management section of Volume 2 that deals directly with decentralisation. At the school level, School Management Committees (SMCs) in basic education schools and Boards of Governors (BoGs) in second cycle schools are expected to play a stronger role in administering their schools (BE16, BE19, SC14, IS11, EM6). 8.11 Efficiency Measures The ESP sets out strategies for making efficiency gains75 on the principle that recurrent expenditures, “especially those that appear to reward a relative few at the expense of a relatively deprived majority” are to be reduced. Targeted areas are: Over-staffing in schools and district offices, as well as a reduction in non-teaching staff, and a review of staffing levels at tertiary institutions. Study leave, which is to be replaced by distance-education packages. Examination fees, where third and subsequent re-sits will not be subsidised. Boarding costs at senior high schools, where those who have the capacity to pay are currently subsidised. The number of scholarships for university fees to be reduced, subsistence scholarships to be replaced by low-interest loans, and foreign students to pay full economic fees. Public-private partnership programmes and projects. 72 Vol. 1, p.22. Vol. 2, EM2. 74 Vol. 1, p.33. 75 Volume 1, section 3.4 and Table 3.4. 73 48 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 8.12 Capacity Development Capacity development is frequently touched on in the ESP, and is variously to be addressed by the distribution of guidelines, the provision of training, an increase in staffing, or the allocation of financial or material resources. The challenges are discussed in the appraisal chapter, below. 8.13 The Monitoring Process The approach to monitoring is described in the ESP as “results-oriented”.76 The intention is that monitoring should take place at all levels of the system: institution, district, region, and national. School report cards, the results of examinations, the periodic National Education Assessment (NEA), and the statistical data captured in the annual education census provide regular information on what is happening at the school level. The annual review process provides an opportunity for the performance of the sector to be assessed in all its dimensions. The National Education Sector Annual Review (NESAR) is preceded by a round of regional reviews. A Preliminary Education Sector Performance Report (PESPR) is tabled at the NESAR, and subsequently finalised with the inclusion of insights gained during the national review. The most recent annual education census provides the review with critical data on progress on the various indicators. 76 Volume 1, p.42. 49 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 9 Appraisal of the Education Strategic Plan, 2010 to 2020 The topics are covered in the same sequence as in Chapter 8 of this report. 9.1 Structure and Coverage of the Plan The Plan has a logical structure, with the second volume providing indicative targets, outline strategies, and indicative activities for achieving the policy objectives of Volume 1. A number of inconsistencies between earlier drafts of Volumes 1 and 2 were eliminated in the course of 2010. There are still places where statements should have been dropped or modified, but if all the volumes of the Plan are taken together, the broad sense is clear. Time which could be devoted to editing these inconsistencies could be better spent on fleshing out aspects of the Plan for implementation. The Plan may be criticised for being over-ambitious and having no clearly articulated priorities; but this need not necessarily be a weakness, provided that the short-term work plans clearly articulate priorities. The value of a comprehensive ten-year plan is that it reminds the Ministry that there is a great deal to be done. The downside is that interventions may not be sufficiently aggressive to achieve the objectives, since planners and implementers may persuade themselves that what is in the Plan is unattainable. This may be countered by having realistic short-term plans (especially for the first year of each AESOP) and ensuring that they are fully implemented. The time frame for many activities is given in Volume 2 as “From Year x”, with no clear indication of what, if anything, should be done in that year. It is noted in the introduction to the volume that the given time frame “shows the year intended for the commencement of a particular activity. In some cases the activity may be completed within a year but in most cases it is likely to be ongoing over a longer period within, or frequently exceeding, the duration of the plan”. An impossibly large number of activities is indicated for commencement in 2010, almost making this column meaningless. The earlier version of Volume 2 was intended to include the costs of the various interventions, but this column of the table was never completed. The revised version no longer has this column.77 This is a positive move, as the listed activities are only “indicative”. The Education Sector Finance Model (EFSM) should be used in conjunction with Volume 2 to get a sense of likely costs. An example of more serious inconsistencies which remain in the Plan is the reference to the number of textbooks required. Outline strategy BE11 has a target of “Primary textbook ratio of 1:1 for core subjects by 2012,”78 but fails to indicate the number of core subjects. EMIS 2009/10 notes that the core subjects are mathematics, English, and 77 There are still statements on p.1 of which lead one to expect the costs of activities to be included in the volume. 78 Volume 2, p.10. 50 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 integrated general science,79 and reports the textbook to pupil ratio as, for example, “3”. The EMIS use of the ratio, taking all the core subjects together, is less ambiguous, and provides a more helpful indicator for determining costs. Since ASEOP is to be the basis for implementation in a particular year, it should be available to implementing units sufficiently far in advance of the start of the year for them to finalise their own detailed implementation plans. Failing this, implementation at, for example, district level may be delayed to such an extent that targets for the year cannot be met. The AESOP for 2011 to 2013 was completed only in the first week of December 2010. For subsequent years implementing units should have a copy of the AESOP not later than the middle of October, by which time the draft AESOP should have been adjusted to fall within the budgetary ceiling set by the MoFEP. With a credible plan it may sometimes be necessary to drop or postpone an activity because of unforeseen difficulties, unforeseen shortages of funds, resignation or transfer of critical staff, etc.; but at the time when the operational plan (AESOP) is compiled there should be a reasonable expectation of being able to implement all its activities. Much of the Monitoring and Evaluation (M&E) Plan, though dated “2010 to 2013”, covers the general principles and approaches which are to be used in M&E. As with the overall Plan, these provisions are ambitious, and there is the danger that much time and energy will be spent on monitoring without adequate analysis of the causes of not meeting targets or any substantial effort to remedy the defects exposed by the monitoring and evaluation.80 EMIS should be a major source of data for the Ministry’s M&E, and steps should be instituted to undertake random verification of EMIS data submitted by institutions and districts. 9.2 Legislation and Policies underpinning the ESP Policy documents take different forms, and distinctions between policies, plans, programmes and even practices are sometimes blurred. Ideally a policy may be considered as a consistent statement of goals, objectives, plans and resources whose content is intended to guide and perhaps change future practices. When resources for implementation are neither identified nor allocated, the “policy” cannot be taken seriously.81 Several of the policies which are supposed to underpin the ESP are still in “draft” form, which calls into question their value as beacons to guide ESP objectives and strategies. At least five of the six policies summarised in Volume 1 are still in draft. 79 The note appears at the foot of every page on which “pedagogical tools” are reported. See, for example, section 9.5, below, on teacher deployment. 81 Adapted from Little, A W: EFA politics, policies and progress, p.4. 80 51 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Science, Technology and Mathematics Education (STME). The policy is prominently marked “draft” and is undated, but in the activity table the “start by” dates vary between 2005 and 2010. One of the objectives of the policy is to “[lift] Ghana to a Middle Level income country by the year 2015”. The ICT in Education policy is a 2006 draft with its tables of strategies aligned to the ESP 2003-2015. The Technical and Vocational Education and Training (TVET) policy is a 2004 draft which, among other things, proposes that the focus of basic education be on generic skills, especially literacy and numeracy and a scientific approach to understanding, and that training in specific skills be postponed to post-basic education levels. The Special Educational Needs (SpED) policy framework is a 2004 draft. Tertiary Education Policy. It was not possible to obtain a copy of the document. The Pre-Tertiary Teacher Professional Development and Management (PTPDM) policy has just been prepared (draft June 2010). It is noted that the new administration has accepted most of the education policies of the previous administration, but that some new policies are proposed.82 Some of these will require investigations to be undertaken and incorporation into the budget before they can be implemented.83 But, apart from a reference to developing a policy on Distance Education (NF7), there are no objectives or activities in the ESP related to finalising or adopting policies that have been drafted. The status of the policies referred to above thus remains uncertain, as is also the case with apparently existing policies on textbook procurement and distribution (BE11, SC11), language in education (BE12), teacher promotion (IS12) and paid study leave for teachers (BE14), School Management Committees and Boards of Governors (BE16, SC14, IS11), and the policy for the admission of students to boarding facilities (SC3), some of which are to be “reviewed”. 9.3 Improved Access to Educational Services Access data at national level for both kindergarten and primary education generally show reasonably high levels, even if targets have not been met, but conceal some wide disparities across regions and districts. It is important that interventions should target those districts which present the greatest challenges. “To eliminate gender and other disparities that arise from exclusion and poverty” is one of the ESP guiding principles, and “No child to be disadvantaged by location, sex, SEN or poverty” is one of the indicative targets of the AESOP. However, no specific strategies or interventions are provided for deprived districts as such. An indication of the disparities in primary enrolment is given in Table 4.84 Gender imbalances favouring boys are significant in the Northern and Volta regions, while girls 82 ESP, Vol 1, p.19. E.g. provision of school uniform to needy children. ESP, Vol 2, BE9. 84 Section 5.1.1, above. 83 52 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 are favoured in the Upper West region. Total NER is 86% or lower in six of the ten regions, including the Greater Accra region. An even greater range will be evident in district level data. In pursuit of the goal of universal primary (or basic) education, the plan lists as an activity: Reach and educate excluded children (i.e. the “unobtainable” last 10% - 20% of NER – i.e. out-of-school, hard-to-reach, truants, street children, intra-cycle dropouts (e.g. after JHS) and adolescent mothers) either within the formal system or within complementary/alternative schooling.85 Responsibility is assigned to the Basic Education Department and regional and district offices (BE2) and to the Non-Formal Education Department with COTVET (NF1). The Schools for Life (SFL) project is specifically mentioned as needing to be evaluated and possibly built on as a means to reaching more children.86 The provision of transport for children who do not live close to a school is proposed, with a target for eligible children of 50% by the year 2014.87 This is one of the interventions for which no costs have been provided in the EFSM. Indicative activities in the plan are inviting tenders from local transport providers, but not providing them with guidelines and timetables until the following year. The impression conveyed is that the logistical implications have not been thought through, nor whether the intervention would be sustainable. The expansion of school feeding and covering the cost of school uniforms for needy children are also included in the plan.88 The Ghana School Feeding Programme (under the Ministry of Local Government) and the World Food Programme have been covering the cost of school meals, and provision is made in the EFSM for school uniforms. School feeding and take home rations for school girls should be retained as a strategy to improve access, attendance and learning performance and reduce gender disparity. Classroom construction is dealt with separately, in section 9.6, below. 9.4 Improved Quality and Relevance of Basic Education The 2009 ESPR declares that “Quality of education remains an unaddressed issue in Ghana”.89 85 Volume 2, p.26: NF1. Volume 2, p.6: BE2; p.26: NF1. 87 Volume 2, p.8: BE7. 88 Volume 2, p.7: BE3. 89 P.24. 86 53 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 The mean scores in the 2007 National Education Assessment (NEA) in mathematics and English for the third and sixth years of primary school testify to the need for corrective interventions. In primary 3 (P3) only 15% of pupils demonstrated proficiency in mathematics and in English, while in P6 the respective percentages for mathematics and English were 11% and 26%.90 These rates of proficiency clearly jeopardise the pupils’ further educational progress and restrict their career options, unless adequate remedial measures can be applied. For those able to attend three years of JHS, around 60% achieved a pass in English, mathematics, science and social studies in the Basic Education Certificate Examination (BECE) in 2008, with boys outperforming girls in all subjects except English.91 2009 saw a marked improvement in the NEA results, with 20% and 25% of P3 pupils demonstrating proficiency in mathematics and in English respectively, and 36% of P6 demonstrating proficiency in English. In P6 mathematics there was little improvement, with only 14% of pupils showing proficiency. While the improvements are to be welcomed, the “lost quality” can still not be said to have been put back into the system.92 Table 15 lists, with comments, some of the interventions from the ESP which might contribute to better learning. The overall impression is that there is a lack of urgency, of coherence and of attention to sustainability in the envisaged strategies, together with a lack of up-to-date information to confirm the scale of the problem or to measure progress in addressing it.93 Table 15 ESP interventions for improved quality teaching and learning “Outline strategy” from the ESP Comment Provide all BE schools with an up-to-date relevant curriculum (BE9). There is a cycle for the routine review and revision of the curriculum. The NEA results point, not to the inadequacy of the current curriculum, but to the fact that it is not effectively taught. The PESPR, 2010, refers to the primary timetable being “congested with too many subjects”.94 90 See Table 5, above. ESPR, 2009, Table 24. 92 See Section 8.4, above. 93 Teacher qualifications are omitted, as they are covered in the next section. 94 PESPR, 2010, p.39. 91 54 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 “Outline strategy” from the ESP Ensure that BE pupils have access to relevant up-to-date teaching/ learning materials (BE11). Ensure that all P6 graduates are literate and numerate in English and a Ghanaian language (BE12). Revise the time table to increase time for literacy and numeracy … (BE12). Comment Although textbooks alone will not guarantee the acquisition of skills and knowledge, textbook shortages may restrict learning. While EMIS 2008/09 reported severe textbook shortages, the ESPR reported that books were procured in the course of 2009 and distributed to schools to achieve the core textbook ratio (three subjects) of 3:1.95 However, EMIS 2009/10 reported that the ratios for primary and JHS were 1.6:1 and 1.5:1 respectively. What happened to all the new textbooks? No information could be obtained on measures to ensure that the ratio is maintained, e.g. in schools where enrolment increases. Pupils are not normally permitted to take textbooks home. It is not clear whether pupils have access to textbooks in schools when teachers are absent. The PESPR 2010 refers to effective utilisation of textbooks as being a challenge.96 It is not clear how literacy in a Ghanaian language is to be achieved without texts in the language (The core subjects are English, mathematics and integrated general science.). Nothing has been said about teaching materials that aid teachers to instruct well. Volume 2 includes among its indicative activities the development of effective methodologies for teaching in local languages in P1 to P3 and in English for P4 to P6. A donor supported project has developed and distributed teaching materials for the teaching of eleven Ghanaian languages and English in KG and P1 to P3, and provided brief in-service training to teachers. The effectiveness of the intervention will depend in large measure on contact time between teachers and learners, the use of pupil-centred activity-based learning approaches, and on further in-service training for sustainability. This is referred to the CRDD for action. It appears to be one of the easier changes to implement, but is another one of the activities marked “ongoing from 2010” rather than having a definite (early) target date. 95 ESPR, 2009, p.35. The Preliminary ESPR, 2010, p.38, surprisingly, gives no update; instead it quotes 2004 and 2008 studies on inadequate levels of textbook availability. 96 Page 10. 55 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 “Outline strategy” from the ESP Ensure that the teaching service provides value for money in terms of pupil contact time and effective learning (BE15). Develop effective operational SMCs in BE schools (BE16). Comment The PESPR, 2010, quotes figures from studies undertaken in 2003 and in 2008 on contact time,97 but nothing more recent. The ESPR, 2009, reported that “Teacher motivation appears consistently at the top of the problem list. … The two most quoted causes of teacher lateness or absenteeism are commute time and course-work for distance learning programmes”.98 Volume 2 estimates pupil time on task at 39% in 2008, and sets a target of 80% in 2015.99 This is not a rigorous approach to what appears to be the chief underlying cause of abysmal pupil performance, especially as the ESPR, 2009, indicates that the distance learning programmes for teachers are designed not to disrupt their teaching programmes.100 It is not clear what sanctioning mechanisms are to be used against teachers and head teachers guilty of unwarranted absenteeism or tardiness. On the other hand, ESP, Vol. 2, suggests that the scheduling of in-service training courses during the school term contributes to teacher absenteeism and that schools lack guidance on time-tabling.101 A management handbook is to be developed in 2010, and training based on the handbook to be implemented between 2010 and 2020. It proved impossible to get a clear response from MoE or GES personnel on the term of office of SMC members; but with training spread over a ten-year period, it is to be doubted that this intervention will make a significant impact on school management. Head teachers, who might be expected to exercise oversight, themselves have a full teaching load in many schools. In such cases the time they spend on supervising their staff members will inevitably be contact time lost with their own pupils. 9.5 Teachers The 2009 ESPR reports a high proportion of unqualified teachers and records problems with teacher deployment and teacher absenteeism. 97 P.39. P.50. Compare p.6 of the same report on the estimated cost to Government of teacher absenteeism. 99 Volume 2, p.13: BE15. 100 P.50. 101 P.13:BE15. 98 56 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 9.5.1 Teacher deployment The widespread inequities in the deployment of teachers have been highlighted in ESPRs since 2005,102 and are illustrated in a series of scatterplots in the ESPR 2009, using EMIS data from 2008/09.103 Basic education teacher deployment is addressed in the plan (BE15) by shifting responsibility for recruitment to the districts, proposing financial incentives, and suggesting a pupil teacher scheme which will also be district-based. Confusingly, though, a teacher “rotation” system is also proposed to “supply remote rural areas with qualified teachers on an equitable basis”. If this is to operate across districts, it negates the district’s responsibility for recruitment. At the same time, it is unlikely that understaffed districts will receive much relief while other districts have large numbers of teachers above the average. There is currently no plan for resolving the existing imbalances in teacher deployment; whether, for example, an overstaffed district will be unable to hire new staff until the situation has normalised. The 2009/10 national average pupil teacher ratios (PTR) for public schools were 31:1 and 15:1 for primary and JH schools respectively,104 as against 34:1 and 18:1 in 2008/09. Movement is away from, rather than towards, the target ratios. The average PTRs in public primary schools for the best off and worst off district in each region are given in Table 16.105 Within each district again there will be schools with PTRs below and above the average for the district. 102 ESPR 2009, p.5. Page 44. 104 EMIS, 2009/2010 education profiles, p.103. 105 The number of districts, 138 at the time of the education census, was subsequently increased to 170 by the division of some districts. 103 57 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 16 PTR in public primary schools, 2008/09 and 2009/10 Regional District PTR 08/09 Regional Region PTR PTR Best Worst 08/09 09/10 District PTR 09/10 Best Worst Ashanti 32 25 39 28 18 39 Brong Ahafo 32 18 44 28 15 37 Central 36 31 43 30 24 35 Eastern 30 23 38 30 21 63 Greater Accra 40 37 42 35 28 45 Northern 33 22 44 29 19 49 Upper East 48 37 64 40 25 59 Upper West 42 34 57 37 29 44 Volta 30 23 48 29 20 64 Western 37 29 44 33 24 38 National 34 18 64 31 15 64 Source: EMIS 2008/09; EMIS 2009/10. Deployment would have to be according to agreed norms, defined by PTR106 or otherwise. BE21 gives the target ratio as 45:1 for primary, but acknowledges that there will be schools where, even with multi-grade teaching, a lower ratio will be required. The implication is that other schools will have to accept a higher ratio to achieve a 45:1 average. Unless there are clear guidelines for districts to follow, many schools might become “special cases”, requiring a more generous ratio than 45:1, to the detriment of other schools. There is also a suggestion in the ESP that small schools might be merged, which raises two problems: whether the selected campus would have sufficient classrooms, and how the closing of small schools would impact on the desire to provide schools closer to the users (BE2). Disparities cannot be significantly reduced without a deliberate and transparent plan which cuts across districts.107 National Youth Employment Programme (NYEP) teachers, who serve for up to two years, are not paid from the MoE payroll.108 They are excluded from any count of teachers which is based on the payroll, but are apparently included in the EMIS count of unqualified teachers and are consequently included in the calculation of the PTR for 106 The PTR may be used to determine the staffing of schools, or it may merely reflect the consequence of staffing policies or practices (based, for example, on the range of subjects taught at the school). 107 John Hedges in 2000 discussed inequitable treatment in the posting of newly qualified teachers in Ghana under the heading “rational system or ‘unsavoury ritual’”. (University of Sussex Institute of Education; MUSTER) Anecdotal evidence suggests that in 2010 little has changed. 108 The Programme is allocated close to 10% of the GET Fund, which is used to cover the costs for the education workers serving in the MoE. 58 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 institutions and districts.109 There were 15,000 NYEP teachers allocated to schools across the country in 2010. On completion of their service some remain at the school as untrained teachers on the MoE payroll, and possibly enrol in the UTDBE110 programme.111 In addition, all tertiary graduates are required to give one year’s service under the National Service Scheme, and a proportion of them will serve as teachers. It is not clear whether NYEP and NSS teachers are allocated to schools where it has not been possible to fill vacancies. 9.5.2 Incentives Two types of incentive are suggested for improving the deployment of teachers to remote rural areas (BE14). A “deprived area incentive package” might include a financial incentive and might also include accommodation or other benefits. The second approach would be to recruit potential teachers from such an area and appoint them on a reduced salary while also providing them with teacher training through the UTDBE programme. Since they were already accustomed to the area and already had accommodation, it is assumed that they would be willing to remain there, at least for several years after qualifying. The “Updated ESP” scenario makes provision for financial incentives to be paid to teachers in deprived areas from 2011, on the basis of a 15% allowance for 30% of the primary teaching force. 9.5.3 Teacher absenteeism and time on task Teacher absenteeism (BE15) is to be addressed by holding in-service training (INSET) activities during school vacations and monitoring attendance. This suggests that INSET is the main reason for the high level of teacher absence. However, the study by Hedges suggests that unwillingness to work in a remote rural environment and having to cope with unduly large class groups may also encourage absenteeism. Although the study was undertaken in 2000, it is likely that these causes are still applicable, at least in some districts. The indicative activity of drawing up and circulating guidelines on “timetabling that ensures maximum teacher-pupil contact time” with SMC oversight of time on task suggests that even when teachers are not absent from the school, they may not be teaching. There is further discussion of the oversight role of SMCs under section 9.9, below. There is a need for further research into the reasons for teacher absence from the classroom, but equally, there is a need for measures (or interim measures) to address the problem. Monitoring by the head teacher should ensure as far as possible that the 109 Nationally the difference in PTR as a result of including NSS teachers might be slight, but unless they were evenly spread across districts their presence might either conceal or exaggerate inequities. 110 See (d), below. 111 Information provided by Mr Pele Abuga, National Coordinator National Youth Employment Programme, to Ms Fiscian on 15 July 2010. 59 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 teacher in the classroom is productively engaged with the pupils. The launch of a nationwide school report card system will bring the data and scale of the attendance issue firmly into the public domain and will provide a focus for the renewed efforts and financing of the School Performance Assessment Meetings at school level. 9.5.4 Teacher training and qualifications Also relevant in the quest for quality learning are teacher qualifications. Table 17 gives the percentage of trained teachers in public primary schools by region. Table 17 Percentage of trained teachers in public primary schools, 2009/10 Region Qualified Teachers Male Female Ashanti 53.1 81.8 Brong Ahafo 48.2 66.2 Central 44.3 74.4 Eastern 62.3 85.6 Greater Accra 84.8 96.9 Northern 31.2 49.9 Upper East 45.4 56.2 Upper West 47.0 59.0 Volta 63.0 80.4 Western 32.0 62.8 National 47.8 76.5 Number trained Number untrained 30,869 33,749 28,094 8,609 Source: EMIS 2009/10 There are inconsistencies in the planning documents on the numbers (and proportion) of teachers to be trained, the adequacy of pre-service and distance training, and the relative value of a three-year CoE qualification as against a four-year university qualification. The ESP sets the target for trained teachers at 95% of teachers on the GES payroll (BE14). In 2009/10 48% of male primary teachers were trained and 77% of female teachers.112 The “Updated ESP” scenario uses 2009 baseline data (58% of primary teachers as trained), and aims at 95% of primary teachers being qualified by 2015. As the salary of an untrained teacher is on average 39% of the salary of a trained teacher, an increase in the proportion of trained teachers has budgetary implications. Under the tertiary education component of the plan the only references to teacher education are the upgrading of teacher training colleges to colleges of education (CoE), with a (reduced) annual intake of 5,000 students (TE1) for basic education, but an 112 EMIS 2009/10. 60 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 increase in the number of colleges to at least 50 by 2015 from 38 in 2009.113 The “Updated ESP” allows for 50% of the new teachers for kindergarten, primary and junior high school to be produced by the CoEs, which will require an increase in intake to around 9,500 in 2014/15 before dropping to less than 5,000 in 2016/17 and subsequent years. The CoE intake in 2007/08 was 8,588.114 Any need for additional teaching space in CoEs would thus be for a very short period, after which the colleges would have to retrench staff. This again points to policy implications not having been projected or clearly thought through. An Untrained Teachers Diploma in Basic Education (UTDBE) distance programme aimed at increasing the proportion of trained teachers was introduced in 2004.115 Around 25,000 teachers were enrolled in the programme, which was implemented in four phases by 35 of the 38 education colleges.116 By February 2010 graduates numbered 7,496 with diplomas and 5,188 with Certificate A. 12,311 teachers were still participating in the third and fourth (“final”) phases of the programme, and it was established that a further 6,000 untrained teachers throughout the country were interested in participating in the programme if it were to be continued. The “pupil teacher” scheme (BE14) envisages that the recruits will be trained through the UTDBE. An external review of the programme conducted in the last quarter of 2009 was not yet available, but the Teacher Education Division (TED) of GES reported “weak organisation of field support”, absenteeism of trainees during face to face sessions, and financial difficulties of trainees, as constraints to the success of the programme. Earlier it had been reported that teacher training colleges needed “to design realistic action plans” and that “mentors and tutorial staff need[ed] to be adequately motivated to perform their expected role efficiently”,117 which apparently means that they expected to be paid more. The “Updated ESP” scenario envisages that 50% of the need for trained teachers in basic education will be met through the UTDBE. Whether through pre-service or INSET, basic education teachers are to receive training in multi-grade teaching and special education needs (BE2, BE4), primary health care (BE6), STD and HIV/AIDS counselling, prevention, care and support (BE8), new primary curricula (from 2013) (BE9), and literacy and numeracy118 in Ghanaian languages (BE12). It is not clear whether these aspects are presently adequately covered in college courses. Given that pre-service training covers only two years of college training 113 EMIS 2009/10. EMIS, 2009/10. 115 ESPR, 2009, p.32. 116 GES, TED, February 2010. Untrained Teachers Diploma in Basic Education (UTDBE) programme. Draft status report. 117 GES, TED, September 2008. Untrained Teachers Diploma in Basic Education (UTDBE) programme. Status report. 118 “Numeracy in Ghanaian languages” does not yet appear to have been thought through. If KG and P1 to P3 pupils are taught a Ghanaian language instead of English, mathematical concepts will also have to be taught through this medium. It is not clear whether teachers and college lecturers are aware of this. 114 61 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 followed by one year of practical training in a school, it may be questioned whether some level of specialization during training would not produce more effective primary teachers. The PESPR, 2010, reports the “neglect of participatory and interactive teaching methods” as a “key structural problem”119 in schools, which calls in question the relevance of pre-service, distance programmes, and in-service training for teachers. There are also anomalies in the arrangements for pre-service training as envisaged in the new policy draft on “Pre-Tertiary Teacher Professional Development and Management (PTPDM) in Ghana”. A teacher holding a diploma from a College of Education will have to complete an induction year and a further six years before being eligible to be appointed as a “senior teacher”, while graduate teachers “will have further on the job training to prepare them to move directly to Senior Teacher Level after the first year of induction”.120 It is seriously doubted whether “on the job” training provided by unspecified persons to a graduate could successfully compensate for six years of teaching experience. It is likely that this measure would also cause resentment among teachers holding diplomas or certificates and intensify their desire to move out of basic education. While the ESP envisages “fee free” education in polytechnics (TE2), it is silent on fees in CoEs and universities (TE1, TE3). The PTPDM draft states that “all training costs [pre-service, distance, and in-service] will be borne by persons receiving training”.121 Yet some teachers will still be allowed to take paid study leave,122 even though allowing qualified teachers to take paid study leave after teaching for a couple of years frequently leads to their opting out of teaching in basic education schools once they have their new qualification. The ESP on the other hand proposes replacing paid study leave123 by sponsored part-time training, but mainly as an efficiency measure, and not to keep teachers in primary schools (BE18). The overall message which the policy carries is that no competent teacher would wish to remain a primary teacher for long. 9.5.5 In-service training Although in-service training of teachers is mentioned in the plan, INSET that is infrequent or of too short duration is generally no more effective than no in-service training at all. While there are no firm guidelines on “how much, how often”, any inservice training provided under the plan should be deliberately structured in a way which is calculated to bring about a sustainable improvement in quality teaching and learning. This will require a focus on instructional methods for teaching particular skills; and a school-based focus – teachers need to observe effective instruction of pupils similar to theirs. 119 P.39. MoE GES, June 2010. Pre-Tertiary Teacher Professional Development and Management in Ghana. Policy framework draft, p.10. 121 PTPDM, p.13. 122 PTPDM, p.13. 123 “Study leave to be cancelled by 2011 following IEC and national publicity”. Volume 2, BE18. 120 62 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Starting in mid-2009 an attempt has been made to strengthen the quality of in-service training in mathematics and science, with the intention that the improved management system for INSET would impact favourably on training in other subjects as well. Under the project the capacity of the National INSET Unit (NIU) to manage INSET is being strengthened, the capacity of national trainers and of district teams is enhanced, and monitoring and evaluation is improved. In the initial months there was some slippage because of budgetary constraints and discretionary spending by districts.124 Much of the emphasis is on the district taking responsibility for the in-service training of its teachers,125 which will be possible only if it is able to budget realistically for the activity. 9.6 Construction of Facilities for Basic Education Classrooms are needed to accommodate children taught “under trees” and to allow the discontinuation of double shifts. The construction of additional teaching rooms may be necessary if access is to increase, while the construction of toilets, laboratories, and ICT facilities and the provision of potable water improve the quality of the educational experience. From Table 18126 it will be seen that 40% of public schools have no potable water on site, and that more than 40% lack toilet facilities. Junior high schools are only slightly better off than are kindergartens and primary schools. Table 18 Percentage of basic education schools with toilets and drinking water Public Schools Private Schools Level Schools (number) With Toilets With Drinking Water Schools (number) With Toilets With Drinking Water Kindergarten 12 481 52 60 4 990 80 77 Primary 13 835 52 59 4 744 81 77 7 969 56 60 2 799 86 79 Junior High Source: EMIS 2009/10, Table 4a. Table 19 draws together all the references in the ESP and AESOP tables to the construction of facilities. In the likely case of a shortage of funds to cover everything, there is no indication of priorities between or within activities. Even for primary classrooms there should be an indication of whether the elimination of double shifts is a higher or lower priority than phasing out classes “under trees” or providing extra rooms to increase enrolment. Reporting should clearly show that the districts with the greatest needs are enjoying priority. 124 GoG/JICA, February 2010. Project for strengthening the capacity of INSET management. First progress report, p.vii-ix. 125 GoG/JICA. Module 2: Operational manual for district level INSET, p.6. 126 See Figure 1 in section 5.1.5, above, for a graphic representation of the situation. 63 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 19 Construction of facilities in ESP Vol. 2 and AESOP ESP Volume 2 a b c d e KG classroom construction within 3 km of communities at a rate to be decided, from 2010 (BE1). Construction, refurbishment, & maintenance of primary & JHS classrooms (BE1). Ensure that infrastructure accommodates children with special needs (BE4, SC6, NF8, IS2, IS6, TE6). Provide adequate safety, sanitation and basic health care facilities at schools by 2015 (BE6, SC7, IS6). Ensure potable water within 250m of BE school sites (100m of SC sites; “available within special schools & units”) & adequate sanitation facilities at all institutions (BE6, SC7, IS6). f g h i j k l m n o p q AESOP 2011 to 2013 from NESAR 2010 Aide Memoire GH¢200 m and GH¢93.3 m p.a. respectively for construction and refurbishment of basic education facilities. GH¢6 m p.a. GH¢100 m p.a. Teacher Housing - Based on EFSM. GH¢12.5 m p.a. Notes that expenditure is “not likely” in 2011. Continue SHS construction & refurbishment to achieve at least one SHS per district by 2020 (SC1) Provide female friendly toilets in all SC institutions from 2010 (SC6). Construct & stock SC, SSU libraries, by 2015 (SC12, IS8). Provision of school & community libraries (SC12). Provide science laboratories in General SH, technical facilities/workshops in Technical SH, and TVI and computer rooms and internet in all SC as appropriate (SC11), from 2012. Establish 5 additional TVIs regionally on needs basis between 2010 & 2015 (NF3). Construct &/or rehabilitate 10 regional libraries between 2010 & 2015 (NF4). Provide a minimum of 5 CoEs per region by 2015 (from 2011) (TE1). Construction & refurbishment of facilities at polytechnics and universities (TE2, TE3). Establish two new universities, first phase construction by 2014 (TE4). Tender for OU facilities (head and regional offices) in 2011 (TE5). Akyeampong estimated a need for around 7,500 schools in 2006.127 Over the past three years around 3,900 primary and junior high schools were built, but the enrolment increased by around 760,000 over the same period,128 suggesting a need for an additional 19,000 or more classrooms, the equivalent of some 3,300 schools;129 a backlog of 6,900 schools at the end of 2009. Table 20 gives the current basic education 127 2007, p.13. ESPR 2009, p.9-11. The comparison is between the years 2005/06 and 2008/09, and includes public and private schools. 129 The assumptions used in this calculation are that a classroom would be needed for every 40 children enrolled, and that a complete school consists of six classrooms. 128 64 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 teaching facilities, both public and private. A standard furnished classroom can accommodate 46 pupils. The national average number of pupils per classroom in public schools was 40 in 2009/10.130 Table 20 Number of schools and classrooms, 2009/10 Level Public Schools Schools ClassAverage rooms Rooms per School Private Schools Schools ClassAverage rooms Rooms per School Kindergarten 12,481 20,202 2 4,990 8,943 2 Primary 13,835 77,490 6 4,744 25,256 5 7,969 28,939 4 2,799 8,729 3 Junior High Source: EMIS 2009/10. ESPR 2009 reports that “The execution rate for Investment was shockingly low at 19%”. While the capital budget covers more than construction, the report suggests that funds intended for construction were used for other purposes. There should be a consistent approach to determining needs, they should be prioritised, and constraints to spending the capital budget should be addressed in the plan. 9.7 The Balance of Sub-Sector Development As observed in section 5.3, above, it is difficult to get any sense of the balance of subsector development apart from the relative per capita expenditures for respective levels as incorporated into the “MiniMax” cost scenario, which does not include costs for all the activities in the plan. The EFA goal of adult literacy is unlikely to be met because of the continued underfunding of the non-formal education (NFE) sub-sector. 9.8 Gender While there is a clear intention to reduce gender disparities at all levels of the system, the target dates are generally vague (“from 2010”) or unrealistic. Nor does the AESOP capture any specific activities that will bring about a definite improvement. On the positive side, because EMIS data is disaggregated by gender, it is possible for GES to determine which districts are most in need of assistance, and for districts to learn which are the schools requiring special interventions. This is the level of detail that is proper to annual operational plans at district level, with a measure of oversight from regional and head offices. 130 EMIS 2009/10. 65 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 9.9 Targets of the ESP Targets used in the education finance simulation model (EFSM) are for 2015 or 2020. In the AESOP, targets are set for the three years covered by the AESOP. There are a few targets in the plan where the approach appears to lack urgency, e.g. the Volume 2 targets for reducing teacher absenteeism and for increasing pupil time on task (BE15). Recent initiatives such as the introduction of the National Inspectorate Board are more appropriate to the seriousness of these issues. A scaled up approach to the training of SMCs (BE16) is necessary to bring about the required degree of change in their effectiveness. In the stated interventions there is insufficient evidence that deprived districts are to be treated with any greater urgency than non-deprived districts. However, closer examination of the budgets reveals that key interventions such as SMC training are focused to the deprived districts. If targets are to guide the pace of development it is important that they are genuinely believed to be attainable with the human and financial resources expected to be available. Ten-year targets may be unrealistic and if so, this should become apparent as the linearly scaled targets for intermediate years are either exceeded or missed. This should also lead to the revision of the targets for subsequent years based on the most recent results and, again, on anticipated human and financial resources. The problems with EMIS data in 2010 have led the Ministry to recognise the need to revise the targets to be realistic but stretching. This process is already well underway with a committee chaired by PBME and attended by the EMIS team, Ministry of Finance and key DPs. Agreement has been reached on the need for the reasons for missing targets to be explored as an essential part of the M&E process. Implementing units will have to report back to the sector group on the rate of progress of their programmes on a quarterly basis, so that deviation from a target can be discussed and timely action taken, otherwise problems may come as a surprise at the end of the year. The M&E reporting at the 2010 NESAR was not evaluative, partly because of the late availability of EMIS data. However, the PBME team have subsequently undertaken some analysis of the data with particular attention to non-performing districts. It is expected that reporting at the 2011 NESAR will be strongly evaluative, so that decisions on adjustments to targets for the following year will be well founded. 66 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 9.10 Decentralised Administration of Education 9.10.1 District level The 2010 ESPR refers to the decentralisation process being jeopardised by “weak political and management will” and “undue political interference in education management”.131 If this is so, decentralisation is unlikely to move from the phase of delegation to that of devolution of authority. And unless resources provided to district administrations are predictable, also with respect to timing, it is unreasonable to hold the districts accountable for output and outcomes. There is a need to clarify whether 2015 or 2020 is the target date for full devolution of responsibility to districts. It is understood that Annex C to Volume 1, “Decentralisation transition plan”, was prepared as a discussion document on the way forward. It includes suggested costs for a committee to work on decentralisation activities in 2010 and 2011. It is not clear whether further discussion has yet taken place. An annex to the “transition plan” proposes new structures for GES headquarters, regional offices and district offices, indicating likely staffing levels as 80-100 for GES HQ, 70 for a REO and 90 for a DEO. The EFSM does not cost specific management areas or activities, but projects the recurrent cost of “Management and subvented agencies” as decreasing from 8% of budget to 5% of budget, and investment spending as decreasing from 8% to 7% by 2020. Table 3.4 of Volume 1 of the ESP suggests that most district offices are overstaffed. Volume 2 contains no detailed targets or activities relating to decentralisation other than EM2, “Clarify, document and publicise (in discussion with all stakeholders) the roles of the GES in relation to REOs and DEOs in the light of full decentralisation by 2015”. There is clearly much detail still to be negotiated. It is doubtful whether DEOs will readily accept a reduction in staff if decentralisation is to give them additional responsibilities. At an early stage the extent to which the DEO is using parallel structures to those already existing in the DA would have to be investigated, to avoid excessive staffing of the DEO. With reduced responsibilities for GES HQ and increased responsibilities for DEOs, the relative staffing of the units may need to be revisited. If it is assumed that the process of decentralisation which has already started will be accelerated over the first five years of the ESP to reach the stage of devolution by the start of 2015, it is surprising that there is not a single indicative activity in the Education Management component for which a DEO is the responsible unit or agency. All responsibilities reside with a unit of the GES, with which DEOs (and REOs) are expected to collaborate. The question arises whether DEOs will be allowed to take the initiative in 131 Page 74. 67 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 any area prior to 2015, and if not, whether they will be ready to do so once 2015 arrives. Consideration might be given to phasing the transfer of functions to district offices; alternatively, the transfer of functions might be piloted in some regions before rolling out to all regions. 9.10.2 School level School Management Committees (SMCs) and Boards of Governors (BoGs) are indicated in the plan as key agents for reducing teacher absenteeism and increasing contact time between teachers and their pupils (BE15; SC16). While there are provisions in the plan for handbooks for SMCs and BoGs to be prepared or revised, and for training based on these handbooks to take place (BE16; SC14), the programme for SMCs is envisaged as being completed only in 2020. This implies that SMCs may not, for many years, be a strong factor in improving teacher performance. There is also the question of turnover of members of the SMC132 and the arrangements for ensuring that capacity within the SMC is transferred to new members. 9.11 Efficiency Measures Table 3.4 in Volume 1 of the ESP draws together some of the key areas in which improvements in efficiency will be possible. 9.11.1 Overstaffing and study leave Reference has already been made to the implications of increasing PTRs to bring about a saving in costs, and to the staffing levels of DEOs. Savings may well be possible by reducing the proportion of non-teaching staff. Any staff reduction, however, is generally a slow process, whether through retrenchment, voluntary retirement, or natural attrition, and would need to be initiated soon to bring about a saving during the plan period. The “Updated ESP” scenario allows the number of basic education and second cycle teachers benefiting from study leave in any year to decrease from over 5% in 2009 to 1% in 2015. The budgeted amount reduces from 43 million in 2010 to 12 million in 2016, after which it increases slightly. It is not clear why study leave is retained when the reference in Table 3.4 of Volume 1 is to its being phased out, and the discussion in section 9.5.4, above, suggests that it introduces inefficiencies into the deployment of teachers without necessarily bringing any benefits, except to the individual teacher who moves out of basic education. If admission to pre-service training courses is properly regulated, there should be no “scope for some study leave in specialist areas of need”. 132 It was not possible to get hold of any document setting out the term of office of SMCs and BoGs. 68 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 9.11.2 Examination fees The AESOP 2011 to 2013 retains an amount of GH¢7 million per annum to subsidise the BECE. 9.11.3 Boarding costs Unless government spending is specifically targeted at those in need by some form of means testing, it will inevitably benefit the well-off who are able to manipulate the system. The default should be that those who go into boarding facilities pay the full cost in advance, and only those who meet the poverty criteria should be exempted. Care should also be taken that the cost of the means testing process does not erode the intended savings. 9.11.4 Tertiary education Savings are to be achieved by reducing the number of students admitted on government scholarships, replacing subsistence scholarships by low-interest loans, and requiring foreign students to pay full economic fees. The reference in Volume 2 to polytechnic education being “fee-free” (TE2) should be understood in relation to the intention, from 2013, to cap the number of government scholarships, which would mean in effect that around 40% of students in public tertiary institutions would have to pay tuition fees .133 There is however no indication that the per capita cost may itself reflect inefficiency, even though the ratio of non-teaching to teaching staff is to be reviewed. The ratio of teaching staff to students may also need to be reviewed to the extent that it influences unit costs. While tertiary institutions should not be micro-managed from the Ministry’s head office, the Ministry’s subvention to universities and polytechnics should be based on a formula of which the staff student ratio should be a part. With the establishment of two new universities and the open university, the recurrent cost of this sub-sector will inevitably increase. 9.11.5 Public-private partnerships The examples given are not very convincing; careful planning is necessary if there is to be a genuine partnership. Although the provision of private schooling brings a saving to Government, the schools are run for profit and not with the aim of meeting Government halfway. If Government is to reward the private sector for assistance with TVET, concessions to the private sector should be based on competencies acquired by trainees in defined fields of national need, and not simply on the provision of training. 9.11.6 Research This is not listed in Table 3.4, but the “Mini Max ESP” scenario provided for a rapid increase in the level of funding for research. The “Updated ESP” makes no distinction between research and other tertiary costs. If an allocation for research is to form part of 133 ESP, Vol. 1, Table 3.4, and EFSM, “Updated ESP” scenario. 69 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 the tertiary funding formula, it should be at a level which would support research likely to impact on economic development, poverty reduction, and the effective and efficient provision of social services, but universities should not be absolved of responsibility for selling their research capabilities within the private sector. There are a number of areas in the strategic plan which would benefit from research, such as teacher deployment and motivation, effective classroom strategies, and the reasons why parents prefer boarding schools to day schools. The results of such research should be used to change unsound practices (but attention to problems should not be delayed on the grounds that they have not yet been researched). 9.12 Capacity Development Capacity most obviously refers to the skills required to perform a specific task; but it also relates to the availability of the persons possessing the skills, and the availability of other resources (transport, equipment, materials) which are necessary for the completion of the task. Delays in the completion of planning documents and in the collection of data for monitoring reports point to capacity deficits. With the very many activities included in the ESP without reference to their priority status, and without supporting detailed implementation plans, it is to be doubted whether the Ministry and the GES will have the capacity to deliver. Specific capacity development needs are scattered through the ESP documents; there has been no attempt to draw them together in a separate section. While there is a clear rationale for including them in the sub-sectoral areas to which they are related, the Ministry’s approach to capacity building would benefit by having them repeated in a coherent CD plan. This is now in progress. The appraisal of the ESP 2003-2015 for FTI membership stated that “immediate action [was] required to establish/reform/strengthen key systems, e.g. procurement of resources, improved teacher deployment/management, monitoring and evaluation and financial management including auditing of pooled external funding”, and that “further work [was] required on strengthening school management and supervision”.134 Of these, improved teacher deployment and strengthened school management and supervision are included in the new ESP, little firm action in this regard having apparently been taken in the interim. In the Ghana country study for the recent mid-term review of the FTI several biting comments were made about the MoE’s approach, and that of the development partners, to capacity development:135 134 135 Para. 3.2. Allsop a.o., 2009, para. 8.28 to 8.33. 70 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Provision tends to be one-off and time-bound.136 Individual development partners have continued to provide support which to a considerable extent is in silos and have been unable to agree with government an overall strategy for capacity development.137 [There has been] no evidence of the government trying to influence donors to harmonise their CD inputs. However, a significant step has been taken to address the main review concern on the need for an overall plan and budget for capacity development. There is now leadership at a country level for capacity development within the Ministry of Finance and the Education sector has agreed to be a pilot MDA to take forward a joint capacity strategy. Donors have agreed to align behind such a plan so that resources can be focused on the priority interventions as noted above. It is expected that this plan will address the key weaknesses identified, such as the concern to which preliminary education sector performance reports (PESPRs) from 2004 to 2008 have regularly drawn attention, namely failure to follow up recommendations made to address capacity weaknesses. “The fact that these are clearly identified as part of an annual review process but are then not addressed should be a matter of concern to all the stakeholders. However, there is no evidence that any significant improvement in performance has resulted, it therefore calls into question the seriousness and value of the annual review process as a key dimension of monitoring and evaluation of the ESP’s progress.”138 Development partners maintain that their CD interventions are planned jointly with the MoE, but donors need to align behind the proposed coordinated plan to ensure that their interventions are not piecemeal, and where they are targeted at selected regions or districts there will be sufficient budget to have an impact. 9.13 Monitoring Progress The National Education Sector Annual Review and the Preliminary Education Sector Performance Report (PESPR) tabled at the review meeting together constitute the mechanism which allows the Ministry and the sector stakeholders to take stock of progress and challenges in the implementation of the ESP over a twelve-month period. The availability of the EMIS data from the education census conducted in November of the previous year is critical to the credibility of the review process. The ESAR is normally conducted in June, with the PESPR distributed prior to the meeting. 136 But it is noted that the “induction of new District Directors of Education is an exception to this”. Another exception: “Some donors, such as JICA, have focussed directly on building capacity by working alongside central Ministry staff within MOE before rolling it out to Districts. This is very effective …” 138 Allsop, para.8.31. 137 71 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 The 2010 ESAR was postponed from June to the first week of August because the processing of EMIS data had been delayed.139 Even for the August date the EMIS data was incomplete, with adjustments made to collected data to compensate for schools that had not responded.140 The range of data used in the report was also restricted. The PESPR had to be drafted before data was available, and consequently is not an analytical report of sector development since the 2009 ESAR. Much of the text refers to studies undertaken prior to the start of the review year. Tables setting targets several years distant are helpful only if the current year’s targets and performance are also given. 139 See section 6.1, above. PESPR 2010, p.19. Since the adjustment does not indicate the number of non-responding schools, and assumes that enrolment at non-responding schools will be average, the amount of variation which the adjustment is likely to produce is impossible to judge. Attempts to obtain this information were unsuccessful. 140 72 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 10 Issues for the Education Strategic Plan The appraisal chapter touches on a number of issues which should be considered as work is done on regularly reviewing and updating the ESP and certainly as the AESOP is rolled forward annually. The main ones are presented in this chapter in the form of recommendations.141 The time which has been spent on getting the ESP 2010-2020 to its present stage of completion should convince all who have a stake in it that education planning is a slow process during which the interrelationships between different strategies have to be carefully explored if inconsistencies are to be avoided. It is also essential that all implementation units are regularly involved in the planning process, without expecting PBME to come up with detailed plans: these are properly the responsibility of the implementing units themselves, with assistance from PBME as needed. It is also important that determining costs should be seen as an integral part of the planning process, and that as detailed implementation plans are drafted, realistic costs are attached to them. Many of the activities in the ESP have a year in which they are to start. If the implementation plan for the activity has not yet been developed, there may be a delay of one to two years before the activity itself can start. It is therefore necessary to work back from the intended start-up date of an activity to determine when the detailed planning should be initiated. Should a specific unit be responsible for detailed planning for a number of activities, it might be necessary to decide which is most important, and to undertake the planning in priority order. 10.1 Structure and Coverage of the Plan It was found that numbering across the different volumes of the Plan was not consistent. Most of these inconsistencies have subsequently been removed. Taking into account the dates when specific activities are to commence, PBME should initiate discussion with the implementing unit on the development of the detailed implementation plan with costs. PBME should provide guidance on how it should be done, should check costing, and suggest ways of improving efficiency. 141 Sections 10.1 to 10.13 below have been substantially changed (in February 2012) to recognize improvements which the MoE/GES have brought about during the past twelve months and forward-looking commitments to further change. 73 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 10.2 Legislation and Policies underpinning the ESP It was pointed out that policies listed in the ESP as underpinning the plan were “draft” versions, never formally adopted. Over the past year, however, some progress has been made towards having policies formally adopted. A revised draft of the Pre-Tertiary Teacher Professional Development and Management (PTPDM) policy was finalized on the basis of comments received . It is expected that it will be submitted to the Chief Director of the MoE for approval by the end of April 2012. Work is also far advanced on a Complementary Basic Education (CBE) policy, which is also expected to be submitted for approval by the end of April. A fresh draft of the Special Education policy has been prepared and circulated for comment. The target date for approval is the end of 2012. Responsible units of the GES will advise the Education Sector Group not later than June 2012 of the schedule for finalizing the TVET, ICT and STME policies. 10.3 Improved Access to Educational Services Research is needed on measures which may be successfully applied either to get the hard to reach of primary school age into school or to provide them with complementary education outside the school. It was recommended that interventions should be targeted in such a way that poverty and disparities were addressed. Implementing this recommendation is complicated by the fact that district level data from the 2010 population census is not yet available. Also, the GoG has indicated that 42 new districts will be proclaimed during the course of 2012.142 However, the criteria for identifying deprived district have been reviewed in early 2012 and a new ranking of districts has been produced. Once the district level social data from the 2010 population census are available the criteria will again be reviewed, and if changes are made, the districts will be ranked afresh. A realistic approach to extending adult literacy (and skills development) has yet to be devised. The policy and action plan being developed for special education will address the question of how larger numbers of children with disabilities too severe to allow them to be mainstreamed will be admitted to the formal education system. 142 It is anticipated that, as in the past, this will be done by splitting existing districts, with the consequence that the MoE will have to guess how the out of school population (for example) of the original district is shared between the new districts. This will require ready access to data disaggregated by district. 74 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 10.4 Improved Quality and Relevance of Basic Education Of the several interventions in the Plan which will lead to substantial improvements in the quality of educational outcomes, those with the greatest potential should be identified, prioritised, and energetically implemented. It was recommended that urgent measures were needed to reduce teacher absenteeism and increase teacher and pupil time on task, since any other intervention to improve quality is unlikely to succeed if this is not done. Discussion at the 2011 NESAR and more recently tend towards improving supervision and reporting, with the School Report Card (SRC) being used as an instrument to this end. It was recommended that the sustainability of textbook provision should be reviewed. A recent draft report on Financial Management touches on this problem.143 10.5 Teachers The most recent national pupil to teacher ratios suggest that current procedures are inadequate to the task of achieving an equitable distribution of teachers across districts and schools. Although guidelines for staffing schools exist, they are not sufficiently clear to ensure uniform interpretation. Traditional practices in regard to the recruitment of student teachers and the deployment of teachers exacerbate the situation. The MoE and GES have decided to request the sector DPs to hire a consultant to assist with the revision of staffing norms and related guidelines. It was recommended that pre-service training courses (full-time and distance) be reviewed and if necessary revised to produce teachers who are able to teach the curriculum in a pupil-centred way. The GES will bring the relevant issues to the attention of the appropriate body144 by the end of March 2012, with a request that the necessary changes be made in time for implementation in colleges of education from the start of the 2013/14 academic year. It was also recommended that in-service training courses should be designed to bring about a measurable change in teacher performance.145 143 144 February 2012 draft report by Ernst & Young, commissioned by JICA. The three newly created councils, the National Inspectorate Board, the National Teaching Council, and the National Council for Curriculum and Assessment, are to meet jointly after their inauguration to strategise their operations since there are cross-cutting issues. Thereafter there will be a meeting with the GES at which relevant issues will be discussed. 145 Consider duration and frequency of courses, activities performed by trainees during the INSET, and periodic follow-up once they have returned to their schools. 75 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 10.6 Construction of Facilities for Basic Education It was recommended that numbers of classrooms rather than schools should be used as the measure of infrastructure needs, and that the provision of facilities should be targeted so that deprived districts were able to catch up with non-deprived districts. National child-friendly school standards have been developed and will be made available to all district offices by June 2012. The provision of latrines and of rain water harvesting is to be included whenever new classrooms are constructed. 10.7 The Balance of Sub-Sector Development It will take several years to achieve the desired balance of expenditure among subsectors. The MoE and its agencies (GES and National Council for Tertiary Education (NCTE)) will endeavour each year in the annual budget preparation to move closer to the target proportional allocation to sub-sectors as set out in the ESP. The budget/expenditure allocation among sub-sectors will be thoroughly analysed in the Annual Education Sector Performance Reports and discussed during the National Education Sector Annual Review (NESAR) meetings until the intended balance is achieved. 10.8 Gender There has been better targeting of resources to districts showing gender disparities in the 2012-14 AESOP. This aspect will continue to receive attention in the future. 10.9 Targets of the ESP It is appropriate for many of the targets in the ten-year Plan to target “all” of a particular category. For the more detailed short-term plans which have to be implemented with limited resources, it may be necessary to have more restricted interim targets. The two most recent iterations of the AESOP attempt to do this. 10.10 Decentralised Administration of Education Time frames for decentralisation (not only in Ghana) are generally over-optimistic. It was recommended that the list of activities to be devolved to district level be compiled and guidelines for the uniform implementation of these activities under delegation should be provided to district offices. It has been pointed out that the Education Act, 2008, already provides such a list of activities (Section 22) and places oversight of the district education budget under the 76 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 District Assembly. Guidelines for financial matters are available, although some streamlining is desirable, and likely as a result of recent insights.146 10.11 Efficiency Measures The twin objectives of (i) more clearly and specifically articulating MoE/GES spending priorities and (ii) identifying high-priority cost-saving, cost-sharing and efficiency measures to be implemented during the period of the AESOP 2013-2015, will be addressed during the 2012 National Education Sector Annual Review (NESAR). In addition, the MoE should continue to negotiate with the MoFEP on assurances of predictability in the release of the approved budget.147 10.12 Capacity Development It was recommended that a capacity development plan be extracted from the ESP, costed and prioritised, and that DPs should align their support of capacity development with the plan. However, it is understood that other priorities currently overshadow the need for a comprehensive capacity development plan. Nonetheless, all capacity development which is undertaken should be designed to impart definite skills, and should include assessment of the extent to which the skills have been mastered. Reporting should be on those successfully completing a course, and not on those attending. 10.13 Monitoring Progress The ESP (Volume 4) makes provision for a great deal of regular monitoring, but lacks mechanisms to use the results of the monitoring to improve the system. Less monitoring with more follow-up action would be preferable. It was recommended that the PESPR should be simplified; that it should consist of tables with brief comments on each, and that the comments should draw attention to progress in relation to targets for the year and to disparities. This would help the participants at the NESAR to focus on the most pertinent issues. This approach was implemented for the 2011 PESPR and will continue to be used in future. EMIS data, except in the case of tertiary education where the MoE does not have direct control of the data collection process, was available for the compilation of the PESPR. The computerised finance simulation model should be used regularly to explore the financial implications of various policy options. It should also be used, at least annually 146 147 See review of Financial Management by Ernst & Young, commissioned by JICA in February 2012. Ibid. 77 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 when the budget is being compiled, to adjust annual targets in the light of the most recent performance data. 10.14 Agreed short-term forward-looking actions Table 21 summarizes the short-term forward-looking actions which will be taken to keep up the momentum that has already been developed. As these activities are completed, agreement should be reached in the Education Working Group on new priority activities to be added to the list. Table 21 Summary of short term interventions Area Action Target date ESP structure & coverage The ESWG will regularly monitor the preparation of detailed implementation plans for activities in the AESOP. Priorities List of deprived districts to be reviewed once new district boundaries have been gazetted April 2011 The rolling AESOP to be used annually to sharpen prioritisation Annually PTPDM and CBE policies submitted for approval. April 2012 Schedule for finalising draft TVET, ICT and STME policies June 2012 Special Education policy submitted for approval. December 2012 Sub-sector balance Balance of expenditure among sub-sectors to be monitored Half-yearly by ESWG Efficiency To be addressed in the NESAR Annually Financial accountability GES to consider recommendations made by Ernst and Young, and to improve procedures December 2012 Teachers Criteria for staffing schools 2013 Revised CoE curriculum 2013 Competency focus in INSET January 2013 Health, sanitation & safety Toilet facilities and potable water to receive attention on any site earmarked for construction work. Instruction has been issued Gender Better targeting of districts with gender imbalances Already implemented Special education New policy December 2012 DP supported interventions Implemented Guidelines for financial management at district level Already issued Guidelines on dealing with teacher tardiness and absenteeism December 2012 Legislation & policies Decentralization 78 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 11 Conclusions The Education Strategic Plan 2010 to 2020 has been designed as a step towards achieving the Ministry’s mission “To provide relevant education with emphasis on science, information, communication and technology to equip individuals for selfactualisation, peaceful coexistence as well as skills for the workplace for national development”. To this end, the ten-year plan is ambitious and comprehensive with good cross government ownership. Strong political and institutional leadership will be needed to ensure prioritisation and appropriate sequencing of interventions. The priorities enshrined in the Aide Memoire following the 2010 NESAR, and which have strongly influenced the short-term AESOP, were distilled from a much longer list by a small working group at the end of the sector annual review (NESAR). Even so, the 2011-13 AESOP left a funding gap of around GH¢840 million for each of the three years (between GH¢430m and GH¢480m for the basic education component). Preventing the funding gap from increasing will require that the efficiency measures included in the Plan are energetically implemented and discipline is exercised to keep on track. Using the 2012-14 AESOP the funding gap for the year 2012 was recalculated as GH¢385.5 million for basic education and special education combined.148 Some of the burning issues require further, more detailed, planning to scale up and reduce unit costs before realistic implementation will be possible. This process needs to be owned and led by the responsible units with assistance as needed from PBME, if implementation is not to be delayed. In order to achieve the education for all goals the challenges of teacher deployment, motivation and competence – including absenteeism, time on task and teacher training – need to be resolved. They are problems which have regularly been described in annual performance reports, and several initiatives are now well underway to addressing them including school report cards and the establishment of the National Inspectorate Board. There will always be sufficient well-off entrants to tertiary institutions, many of whom will have benefited from private schooling; but the Government’s vision of a Better Ghana with steady progress towards a modern economy will not be realised as long as the majority of children are receiving a primary education of indifferent quality. The overall ten-year Plan is credible, but ambitious. The three-year AESOP represents a strong attempt to identify the sector priorities, to improve quality and transform pedagogy, embed efficiency, and bring about measurable progress in the short term. 148 UPDATE: This paragraph was added in February 2012. 79 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 The Education Sector Working Group (ESWG) should continue to meet regularly, and take on the role of monitoring the implementation of the AESOP. While EMIS updates will be available only once a year, it should be possible to measure progress in implementing the high priority strategic activities and the rate of financial disbursements against sub-sector budgets. In this way remedial action may be taken in a timely fashion. The FTI provides a catalyst for stakeholders to be ‘on budget’ and pool their resources behind the common plan and agreed targets. New leadership in the Ministry and commitment from all stakeholders in the education sector provide the motivation needed to translate this ambitious plan into reality. The FTI resources would provide an exciting opportunity for Ghana to lead the way in making substantial progress to realise the MDG goals in education. 80 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 ANNEXURE APPRAISAL OF AESOP 2012-2014 1. Introductory Remarks The Appraisal of the Education Sector Plan included the appraisal of the AESOP 2011-13 as one of the Plan documents. With twelve months having elapsed since the draft Appraisal was submitted, it has been necessary to appraise the latest iteration of the Annual Education Sector Operational Plan, that for 2012-14, which flows from the volumes of the ESP which have already been appraised. 2. Overall Appraisal The AESOP 2012-14 includes a wealth of detail relevant, not only to implementation of the ESP in 2012, but also to the detailed planning that is necessary prior to the year 2013 if genuine progress is to be made in implementing the more difficult of the Plan’s strategies. Annex 2, which provides detail relevant to the implementation of activities identified as priorities in the Aide Memoire (AM) of the NESAR, also sounds warning where slippage has occurred or is in danger of occurring. This makes it a valuable implementation tool. 3. Structure of AESOP 2012-2014 In most respects the AESOP 2012-2014 follows the approach and structure of that for 2011-13, which was generally regarded as an improvement on the older format, and which made a strong effort to cross-reference activities to the second volume of the ESP and to align them with (1) the priorities which were identified during the NESAR as expressed in the Aide Memoire, (2) the Ministry’s budget request to the Ministry of Finance and Economic Planning (MoFEP), and (3) the notional costs derived from the Education Finance Simulation Model (EFSM). The following changes have been made to the AESOP for 2012 to 2014 as compared with that for 2011 to 2013: An additional column, “MoF ceiling with salaries”, has been added to Table A.1 to reflect the expectation that the MoFEP will, as in past years, meet the full remuneration requirement, even though this will exceed the budgetary ceiling notified to the MoE. The “real” GoG budget to which the MoE will be working is thus considerably higher than the approved budgetary allocation to the Ministry, but the difference is entirely absorbed by personnel emoluments. 81 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Annex 4 has been added to show confirmed and estimated allocations from the GET Fund for 2012, and Annex 5 to show the contribution made by Development Partners, and the main activities supported by these funds. Annex 7 shows the GES budget allocation for 2012 broken down by programme. It should be noted that the Ministry’s budget request is classified according to the Ghana Shared Growth and Development Agenda (GSGDA) strategy areas, which do not fully align with the classification of strategies and activities in the ESP and AESOP. 4. The Annual Strategic Planning Cycle as applied in 2011 The Preliminary Education Sector Appraisal Report (PESPR) was prepared in time for the NESAR, thanks to EMIS data being available earlier than in the previous year. The NESAR took place from 30 May to 2 June 2011, at the end of which an Aide Memoire (AM) was prepared, setting priorities for the coming year. A further meeting was called by the Minister of Education on 26 June to look at priority actions that could be taken to improve progress towards achieving the first three MDGs. The preparation of the AESOP 2012-14 was, however, delayed, and so the draft AESOP did not form a step between the NESAR and the Budget Request. The question as to the relationship between district budgeting and the AESOP requires further discussion. If there is to be a measure of bottom up budgeting, with draft district budgets feeding into the GES budget request, districts should have access to the draft AESOP priorities before they prepare their budgets. Section 9.1 of the Appraisal suggests that “implementing units should have a copy of the AESOP not later than the middle of October, by which time the draft AESOP should have been adjusted to fall within the budgetary ceiling set by the MoFEP”. Districts, as implementing units, might need to revise their activities on receipt of this final version of the AESOP. This is an area which would benefit from further discussion. 5. The Aide Memoire resulting from the 2011 NESAR The Aide Memoire directs attention to a number of important areas, but – These are not necessarily the same priorities as identified the previous year, even if those have not yet been effectively attended to. For example, the 2010 AM has “Deliver education through effective decentralized management system to transfer decision making authority over management, finance and operational issues from 82 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 the MoE and the GES to the regional and district authorities. (EM1)”, but this is ignored in the 2011 AM.149 Some are too ambitious in scope for implementation in the short term, and this is where the focus should be: implementation in the coming year. For example, the AMs for both 2010 and 2011 have a range of activities for implementing ICT in junior high schools, more than could be implemented in one year even if the funds were available. Some are specific, but appear to skirt central issues. For example, the reference to teacher absenteeism suggests only ending the withdrawal of teachers from schools for “other national assignments” and the increased mobility of circuit supervisors as necessary interventions. It is recommended that in future reviews the previous year’s priorities be used as a starting point. If not yet achieved, the focus should then shift to the most effective (prioritised) strategies by which they might be achieved. Fresh priorities should be added only if others can be dropped from the list because they have been achieved. 6. 2012 Budget Request and Budget Allocation The MoFEP had warned the MoE to be restrained in their budget application for 2012, and indicated that there would not be funding for new capital works; consequently the MoE submitted a budget request which would not cover all the activities it was hoped to implement. The total budget request was for GH¢4,836.7 million, of which GH¢2,110.3 million was for basic education and GH¢21.2 million for special education. As in previous years, the MoFEP allocated a smaller amount for remuneration than had been requested (GH¢798.1 million as against the requested GH¢1,586.2 million), but it is confidently expected that, as in previous years, all staff members will receive their salaries. This approach to remuneration may have the unintended effect of removing the incentive to the MoE/GES to address inefficiencies in the recruitment and deployment of teachers. However, if a realistic budget for remuneration (PE) is to be set, agreement must first be reached on the implementation of staffing formulae for schools.150 7. Use of Financial Data generated by the Education Finance Simulation Model (EFSM) 149 There is some technical assistance/research led by UNICEF and DFID that is starting to assess how district assemblies fund education programmes. 150 In ESP vol.1, Table 1.2.2 shows a target Primary PTR of 35 in 2015 – but this table is carried forward from the previous ESP, while Table 5.1 sets the targets at 38 for 2015 and 45 for 2020, and Table 3.4 indicates that the PTR should be 45 in “all KG and larger primary schools”. Vol.2, strategy BE42, gives a “mean PTR” of 45:1 for KG and primary. 83 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 In using data generated by the EFSM it should be borne in mind that the data is linearly scaled from the base year to achieve targets in 2015 or 2020. If either the targets are unrealistic or the implementation modalities are defective, the actual costs in any particular year may be significantly higher than the projected amount. Two examples: Teacher remuneration: In the case of primary teachers, the target PTRs for 2012, 2013 and 2014 in the EFSM are 36.0, 37.1, and 38.2 respectively. If the PTR remains lower (33.7 in 2010/11), actual salaries will be higher than the projected amount. One of the cost savings measures in the Plan is the phasing out of stipends to college of education students (BE18). The EFSM projects a decrease in stipends to GH¢39.2 by 2014. However, no action appears yet to have been taken towards phasing out the stipends; on the contrary, the Single Spine salary reform has trebled the amount of the stipends. A comment in Annex B to the AESOP notes that “As no concerted attempt appears to be being made to reduce either the cost or coverage of the allowance, the budget request of 119.2m GH¢ is used for 2012 – 2104.” (BE18) The phase out, when it happens, of an annual stipend of GH¢3,900 is likely to cause greater dissatisfaction among trainees than the phase out of a stipend of GH¢1,267. It is recommended that the EFSM be routinely used at an early stage of the planning cycle to alert the policy makers and implementers to areas where savings may be made through efficiency. More specifically, that detailed planning be done at an early stage for the cost saving measures in the ESP so that implementation may commence in FY2013. 84 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 References Akyeampong a.o., 2007. Access to basic education in Ghana: the evidence and the issues. CREATE. Allsop, T., a.o., September 2009. Mid-term evaluation of the EFA Fast Track Initiative. Country case study: Ghana. Draft. Cambridge Education/Mokoro/Oxford Policy Management. Casely-Hayford a.o., August 2009. Strengthening the Chain of Accountability to Improve Quality and Performance in Ghanaian Primary School.s Link Community Development external assessment, GoG, November 2005. Growth and poverty reduction strategy, 2006-2009 (GPRSII), Vol. 1. GoG/JICA. Module 2: Operational manual for district level INSET. GoG/JICA, February 2010. Project for strengthening the capacity of INSET management. First progress report. Little, A. W., 2008. EFA politics, policies and progress. CREATE pathways to access, Research monograph no 13. CREATE, Falmer. MoE. Annual education sector operational plan, 2010 (AESOP, 2010). MoE. Annual education sector operational plan, 2011 (AESOP, 2011). MoE. Annual education sector operational plan, 2012 (AESOP, 2012). MoE. Education sector performance report, 2009 (ESPR 2009). MoE. Preliminary education sector performance report, 2010 (ESPR 2010). MoE. Preliminary education sector performance report, 2011 (PESPR 2011). MoE. Education strategic plan, 2010-2020 (ESP 2010/20) volumes 1, 2, & 4.151 MoE, EMIS, March 2009. Report on basic statistics and planning parameters for basic education in Ghana 2008/2009 (EMIS 2008/09). MoE, GES, June 2010. Pre-Tertiary Teacher Professional Development and Management in Ghana. Policy framework draft. MoE, GES, November 2011. Pre-Tertiary Teacher Professional Development and Management in Ghana. Policy framework draft. MoE, GES, TED, September 2008. Untrained Teachers Diploma in Basic Education (UTDBE) programme. Status report. MoE, GES, TED, February 2010. Untrained Teachers Diploma in Basic Education (UTDBE) programme. Draft status report. MoFEP, 18 November 2009. Budget speech for 2010 fiscal year. MoFEP, November 2009. Highlights of 2010 budget MoFEP, November 2009. Macroeconomic performance for 2009. 151 The AESOP is the third volume of the ESP. 85 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Thompson & Casely-Hayford, 2008. The Financing and Outcomes of Education in Ghana. RECOUP. UIS, 2009. Global education digest. UNDP, 2009. Human Development Report, 2009. Statistical annex. World Bank, September 2010. Education in Ghana: Improving Equity, Efficiency and Accountability of Education Service Delivery. Draft (not to be cited). Washington. 86 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Annex Consolidation and Summary of Appraisal Results Table 1: Catalogue of Main Documents for the Technical Appraisal Document Date of Draft (Base Year Data) Authorship/ Sponsorship Education Sector Plan 2010-2020 (Four volumes, with Annexes) September 2009 (2007 or 2009) Ministry of Education Education Sector Performance Report July 2008, June 2009, August 2010 Ministry of Education Access to Basic Education in Ghana: The Evidence and the Issues Country Analytic Report June 2007 Akyeampong, K. et al EMIS Education Census Data 2008/09; 2009/10 Ministry of Education Comments on the Education Budget, 2009-10 2009 Development Partners, Ghana Pre-Tertiary Teacher Professional Development and Management in Ghana. Policy framework draft. 2010 MoE, GES Mid-term evaluation of the EFA Fast Track Initiative. Country case study: Ghana. Draft. September 2009 Allsop, T., a.o. Education in Ghana: Improving equity, efficiency and accountability of Education Service Delivery. Draft (not to be cited) September 2010 World Bank 87 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 2A: Population and Education Indicators Selected from Appraisals Fiscal Year Academic Year Selected Population Characteristics 2005 2004/2005 2006 2005/2006 2007 2006/2007 2008 2007/2008 2009 2008/2009 Total Size 21,606,852 22,190,237 22,789,373 23,404,686 24,036,613 Female Population 10,916,141 11,210,877 11,513,570 11,824,437 12,143,697 % of population below poverty line HIV Prevalence Rate (population aged 1549) 30% 30% 2% 1.90% 2010 2009/2010 Education Trends Gross Enrolment Ratios (%) Primary Female Junior High 87.5 92.1 93.7 95.2 94.9 94.9 84.4 88.8 91.6 93.0 92.8 93.0 72.8 74.7 77.4 78.8 80.6 79.5 25.6 29.1 35.8 32.2 33.9 36.1 2,929,536 48.0 20.5 3,122,903 48.5 15.7 3,365,762 48.5 17.3 3,616,023 49.0 17.0 3,710,647 49.0 18.0 3,809,258 48.5 18.6 59.1 69.2 81.1 83.4 88.5 83.6 77.3 81.6 87.4 82.3 Female Senior High Female Tertiary Female Primary Education (P1-P6) Enrolments & Pupil Flow Total enrolment Female (%) Enrolment in Private Schools (%) Net enrolment Rate (NER) Female NER Poorest Quintile Entry Rate to P1 (GAR) Female Primary Completion Rate Female Repetition Female Primary Learning Outcomes: NEA Mean Scores P3 Mathematics P3 English P6 Mathematics P6 English 92.8 106.1 106.0 107.1 102.9 101.3 79.0 75.6 85.4 88.0 86.3 87.1 5.8 4.3 5.9 82.3 6.7 83.2 3.8 84.3 ?? n.a n.a 41.8 40.2 39.6 48.2 n.a n.a 34.4 43.1 n.a n.a 35.7 44.2 88 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Fiscal Year Academic Year Public Primary School Service Delivery Indicators Years in Cycle Pupil Teacher Ratio In Rural Schools Pupil Classroom Ratio In Rural Schools Textbook Pupil Ratio (3 Core Subjects) In Rural Schools Number of Teachers Female Trained Teachers (%) Female (%) Average annual wage bill per teacher (including benefits) as a % of GDP per capita Instructional Hours Annual Average Pupils' Instructional Hours per Week Junior High (JH1-3) Enrolments & Pupil Flow Total enrolment Female (%) Enrolment in Private Schools (%) Net enrolment Rate (NER) Female Entry Rate to JH1 Female JHS Completion Rate Female Repetition Female Junior High Learning Outcomes: BECE Pass Rate Public Spending on Education Public expenditure on education as a share of total public expenditure Recurrent spending on education (all levels) as % of GDP 2005 2004/2005 6 35.0 72.3 90.1 2006 2005/2006 2007 2006/2007 2008 2007/2008 2009 2008/2009 2010 2009/2010 6 38.0 35.6 NA 32.2 1.8 6 33.0 31.4 39.0 32.0 2.0 6 34.0 31.8 39.8 32.7 1.7 6 34.0 32.3 39.8 32.7 1.6 6 31.0 ?? 40.0 ?? 1.6 70,334 25,673 67.1 83.5 - 84,324 29,757 62.1 79.5 - 87,665 30,852 59.4 79.4 4.9 88,994 32,187 58.4 77.4 4.9 101,321 36,703 58.2 76.5 ?? 1,048,367 45.7 1,121,887 44.0 1,170,801 46.6 1,224,010 46.7 1,285,277 46.8 1,301,940 46.4 50.7 52.9 47.8 47.5 49.7 51.8 47.7 45.0 66.0 61.8 3.3 60.0 53.0 4.6 77.9 74.7 3.4 64.9 60.0 4.5 67.7 62.9 4.5 75.0 70.1 3.1 61.3 62.0 63.0 63.0 60.9 n.a. 7.5 8.2 9.1 10.1 4.9 5.7 6.2 7.0 89 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Fiscal Year Academic Year Primary education’s share of total education recurrent spending Share of recurrent primary education spending used on inputs other than teachers Average recurrent cost per student Primary Secondary Higher 2005 2004/2005 2006 2005/2006 30.0 2007 2006/2007 27.6 2008 2007/2008 35.0 2009 2008/2009 35.0 6.3 6.6 5.0 19.0 46.60 89.22 240.37 73.71 135.05 216.74 142.99 197.97 219.28 178.07 241.47 265.97 2010 2009/2010 90 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 2B: Education Indicators for Disadvantaged Groups as Relevant 2007/2008152 Gross Enrolment Ratios Primary Education Primary Secondary Total Enrolment Net Enrolment Rate Completion Rate Boys 97.1 82.2 1,860,289 84.2 74 Girls 92.8 75.2 1,755,734 81.6 82.3 Group Tertiary 1 All Groups Richest Quintile (Total) 23.8 66.9 Poorest Quintile (Total) 12.1 1.8 2 Best Performing Region Total 108.8 95.3 669,817 99.4 100.9 Females 106.9 92.2 327,708 98.4 99.1 3 Worst Performing Region Total 87.7 63.1 125,676 71.8 78.8 Females 86.1 58.5 62,385 67.2 72.6 4 Disabled children Total 5,654 Females 2,339 152 Data Source: EMIS report for the corresponding years was used in checking the discrepancies. Figures were rounded up to one decimal point. Data for 2009/2010 is not yet available. 91 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 3A: Overall Sector Priority Objectives and Strategies153 Focal Area (Sub-sector) 1 Basic Education (BE) Strategic Goal: Provide equitable access to goodquality child-friendly universal basic education, by improving opportunities for all children in the first cycle of education at kindergarten, primary and junior high school levels Outline Strategies by Thematic Area Socio-humanistic BE1. Make available public and private child-friendly basic education for all through the District Assemblies, the Private Sector, CBOs, NGOs and FBOs. BE2. Ensure that no child is excluded from BE by virtue of disadvantage BE3. Remove barriers to education by improving pupil welfare to motivate parents and learners to attend school. BE4. Ensure equal basic education opportunities for all. BE5. Promote public-private partnerships (CBOs, NGOs, FBOs, and DPs) in the Integrated School Health programs. BE6. Ensure that all BE schools meet national norms in health, sanitation and safety BE7. Make transport available for KG and Lower Primary (P1 – P3) infants who live more than 3 km from school. BE8. Include BE schools within national initiatives to reduce HIV&AIDS pandemic and STDs BE9. Provide all BE schools with an up-to-date curriculum relevant to personal and national development. Educational Economic BE11. Ensure that BE pupils have access to relevant up-to-date teaching/learning materials. BE12. Ensure that all P6 graduates are literate and numerate (n English and a Ghanaian language BE14. Improve the preparation, upgrading and deployment of teachers and head teachers especially in disadvantaged areas with emphasis on female and pupil teachers. BE13. Provide relevant opportunities for ICT and skills development BE15. Ensure that the teaching service provides value for money in terms of pupil contact time and effective learning. BE16. Develop an effective operational SMCs in BE schools. BE17. Provide capitation grants to SMCs to manage school improvements BE18. Remove the ‘subsidy culture’ from the BE subsector BE19. Develop an open mutual-accountability scheme for parents, teachers, BE schools and Districts (likewise, DEO, REOs, GES). BE20. Establish and operationalise an effective NIB. BE21. Rationalise the deployment of KG, PrS, JHS teachers raising PTRs through multi-grade teaching, boarding, bussing and closure of uneconomic courses/schools BE10. Ensure that girlfriendly guidance and counselling systems are in place centrally and in Districts. 153 Table from Vol. 1 of the ESP. 92 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Focal Area (Sub-sector) 2 Second Cycle (SC) Strategic Goal: Increase equitable access to high quality second cycle education that prepares young adults for the various options available within tertiary education and the workplace [Note: there are five distinct strands to second cycle education, each with the above broad strategic goal]: Senior High Schools (General) Senior High Schools (Technical) Technical and Vocational Institutes Formal Apprenticeships Agriculture Colleges Outline Strategies by Thematic Area Socio-humanistic SC1. Make available free public and private SC education and training for those eligible. SC2. Provide transport for SC students who live more than 5 km and less than 15 km from their institutional SC3. Provide free boarding as necessary for eligible SC students SC4. Develop and implement an Integrated School Health (ISH) programme within SC education. SC5. Include SC institutions within national initiatives to reduce the HIV&AIDS and STD pandemics. SC6. Ensure equal education opportunities for all academically eligible SC students SC7. Expand and improve SC Health, Sanitation and Safety systems. SC8. Include SC institutions within national initiatives to reduce the HIV&AIDS and STD pandemics. SC9. Ensure that all SC national curricula are up-todate and relevant to personal and national development. Educational SC11. Ensure that SC students have access to relevant up-to-date teaching/learning materials (including ICTs). SC12. Make libraries available to SC students and staff SC13. Ensure that all SC completers have appropriate skills for future study and work. Economic SC14. Strengthen BoGs and introduce capitation grants to improve local management of SHS, TVI, Agric institutions. SC15. Improve the effectiveness of SC teacher preparation, upgrading and deployment. SC16. Ensure that SC teachers provide value for money in terms of student contact time and effective learning SC17. Remove the ‘subsidy culture’ from the SC education sub-sector. SC18. Improve accountability relationships between parents, Institutions and District Education Offices (DEO); (similarly REOs and GES) by developing an open mutual accountability scheme. SC19. Establish and operationalise an effective NIB that monitors and assists SC institutions SC20. Ensure effective deployment of SC teachers nationally, between districts and between schools within districts SC10. Ensure that central and outlying GEUs are functional and informed by EMIS. 93 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Focal Area (Sub-sector) 3 Non-Formal Education (NF) Strategic Goal: Provide opportunities for those outside the formal education system to have free access to meaningful high-quality userfriendly education and training, whether through inclusive or complementary provision, approved or informal apprenticeships, distance education or technical and vocational skills development (TVSD) Outline Strategies by Thematic Area Socio-humanistic NF1. Ensure that all citizens have access to education and training opportunities (that recognise and build on prior learning whether formal or non-formal) NF2. Provide conditions for universal functional literacy. NF3. Expand and improve post-basic education, nonformal and TVSD opportunities. Educational NF11. Ensure relevant and diversified education, training and skills development for employability and self employment. NF12. Ensure that appropriate skills are provided for personal development and work. Economic NF13. Provide effective preparation, upgrading and deployment of non-formal trainers. NF14. Develop user-driven accountability schemes for NF courses NF15. Rationalise the deployment of NF trainers, with greater emphasis on the informal sector NF4. Provide public library facilities and support the development and use of community and private libraries. NF5. Provide free bussing to registered children, youths and adults who live more than 5 km and less than 15 km from training centres. NF6. Absorb cost of utilities in non-formal institutions within overall government budget. NF7. Promote and expand distance education in its various forms (traditional and electronic. NF8. Ensure equal opportunities for non-formal education and training for all out-of-school children, young people and adults. NF9. Provide motivation packages to encourage the take-up of non-formal opportunities. NF10. Identify and promote STD and HIV&AIDS prevention, care and support in NF education. 94 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Focal Area (Sub-sector) 4 Inclusive & Special Education (IS) Strategic Goal: Provide education for excluded children (including those who are physically and/or mentally impaired or disabled, slow/fast learners, orphans, young mothers, street children, those from deprived areas, slum children, poverty victims) by including them, wherever possible, within the mainstream formal system or, only when considered necessary, within special units or schools Outline Strategies by Thematic Area Socio-humanistic IS1. Include disadvantaged children within the existing education system or provide special facilities for them. IS2. Include all children with non-severe physical and mental disabilities within mainstream institutions. IS3. Provide special schools or education units or for those severely disabled. IS4. Provide transport and/or guides to nonboarding SSU students who live more than 5 km and less than 15 km from school. IS5. Motive seriously disadvantaged children (severely disabled, orphans, street children, etc.) and their parents to attend mainstream or special schools. IS6. Ensure that Health, Sanitation and Safety systems are applied in Special Schools and Units (as well as mainstream schools). Educational IS7. Ensure that Special Schools and Units (SSU), and their pupils, have access to appropriate teaching/learning materials (including ICTs). IS8. Equip school and public libraries with special facilities for the development of those who are severely disadvantaged. IS9. Ensure that the curricula of Special Schools and Units (SSU) are relevant to personal development. Economic IS11. Establish SMCs and introduce capitation grants to improve local management of SSUs. IS12. Ensure that SSU teachers provide value for money in terms of pupil contact time and effective learning. IS13. Develop an open mutual-accountability scheme for parents, SSUs, teachers and Districts (likewise, DEO, REOs, GES) IS10. Ensure that SSU completers have appropriate life skills including job-market training for the severely disabled 95 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Focal Area (Sub-sector) 5 Tertiary Education (TE) Strategic Goal: Increase equitable access to high quality tertiary education that provides relevant courses to young adults within Colleges of Education, Polytechnics and Universities, and for research and intellectual stimulus Outline Strategies by Thematic Area Socio-humanistic TE1. Make available initial training of teachers within CoEs. TE2. Provide fee free education in Polytechnics. TE3. Provide an effective operational University system. TE4. Establish two new public sector universities – 1st phase. TE5. Provide open learning, including a degree-awarding Open University. TE6. Ensure equal tertiary education opportunities for all academically eligible students. TE7. Include tertiary institutions within broad initiatives to mitigate HIV&AIDS pandemic and STD 6 Education Management (EM) Strategic Goal: To improve planning and management in the delivery of education by devolving resource management and decision-making to regions, districts and institutions, while retaining central responsibility for establishing norms, guidelines and system accountability Educational TE8. Establish mechanisms for monitoring, evaluation and review of tertiary standards and norms. TE9. Promote academic programmes and research activities relevant to national development in collaboration with the private sector. TE10. Establish and maintain a NCTE documentation centre. Economic TE13. Develop an efficient tertiary subsector. TE14. Ensure that academic staffs provide value for money. TE15. Develop a mutualaccountability scheme for students’ institutions, academic staff and NCTE. TE16. Ensure that the NAB is functional and fit for purpose. TE11. Make research findings publicly available. TE12. Ensure that tertiary graduates have appropriate broad skills for future study and work. Outline strategies (non-thematic) EM1. Create two-way public-private partnerships at all levels of the education system. EM2. Identify, clarify and strengthen education delivery at all levels of the education system EM3. Strengthen M&E, accountability and efficiency measures across the whole sector at all levels EM4. Strengthen the Education Management Information System (EMIS) and improve the availability of education statistics (through provision of relevant software for data collection, analysis and publication) EM5. Develop and implement equitable resource allocation systems that are available to public scrutiny EM6. Manage and oversee all pre-tertiary schools through community-elected SMCs or BoGs, each school with a SPIP EM7. Create two-way public-FBO partnerships at all levels of the education system EM8. Provide and enforce guidelines on cost sharing and cost recovery 96 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 3B: Selected Cost and Financing Simulation Results for Assessing Strategic Directions Indicator 1 Student Flow Indicators % of age-group entering first grade in primary cycle (GAR) (Total) % of age-group entering first grade in primary cycle (GAR) (Girls) % of age-group completing 6 in primary cycle (b) (Total) % of age-group completing 6 in primary cycle (b) (Girls) % repeaters among primary school pupils (Total) % repeaters among primary school pupils (Girls) Enrolments in primary education EFA FTI Indicative Benchmark Country's Base Year Position Full ESP Cost Conscious 100 98.9 99.9 99.9 Target Outcome in 2020 Minimax Updated ESP 99.9 99.9 99.9 100 79.9 99.9 99.9 99.9 99.9 99.9 10 or less 6.5 6.5 6.5 6.5 6.5 3,616,023 5,758,933 5,758,933 5,758,933 5,270,175 1,224,010 2,290,877 2,290,877 2,290,877 2,938,962 Enrolments in post-primary education Total students in secondary (Total) Total students in secondary (Girls) Total students in higher education (Total) Total students in higher education (Girls) Gross admission rate in first year of secondary education (JH1) (Total) 2 Service Delivery Indicators in Publicly-Financed Primary Schools Pupil-teacher ratio Average annual wage bill per teacher (thousand US$) Updated ESP (multiples of GDP per capita) 342,670 40 80.2 99.9 99.9 99.9 100 34.4 3.23 35 2.84 40 2.84 45 2.84 45 3.4 Existing teachers (Total/Girls) 86,916 New teachers (Total/Girls) Weighted average of existing & new teachers Spending on school inputs other than teachers as % of total recurrent spending on primary education Annual instructional hours for pupils % of pupils enrolled in privatelyfinanced primary schools Cost to construct, furnish & equip a primary classroom (US$) 136,090 119,079 105,848 93,692 5,442 3.5 33 15.9 15.7 19.1 20.7 17.3 17.3 17.3 17.3 850 --1000 10 or less 20 8,000 3 Additional Costs of HIV and AIDS Response Prevention (life skills based education etc) 97 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Teachers (replacement/substitution/code of practice etc) Children affected by HIV/AIDS 4 Additional specific costs of addressing gender inequality Demand Side interventions (advocacy and community awareness raising; double capitation grants to schools for girls etc) Supply side interventions (inservice teacher training in gender and education issues; positive action measures for female teacher recruitment; ‘second chance’ opportunities; implementation of sexual harassment policies in schools; elimination of gender bias and stereotyping in textbooks etc) 5 Actual/Projected Recurrent Costsper student (in multiples of GDP) Kindergarten Primary education Secondary education Junior High School Senior High School Post Secondary education Technical & vocational education Higher Education Total Share of primary education in overall spending 6 Projected Capital Costs of Classroom Construction Costs of providing water and sanitation (with separate sanitation facilities provided for boys and girls) Aggregate costs in US$ 7 Actual/Projected Domestic Resource Mobilization Domestically-generated government revenues (as % of GDP) Total recurrent resources for education (includes external resources assuming that external financing stays at 10.3% of public funding) (GHc million) % of domestically-generated revenues % of GDP 0.17 0.27 0.19 0.28 0.15 0.22 0.10 0.15 0.14 0.19 0.19 0.43 0.68 0.64 0.48 0.41 2.52 3.64 2.52 3.63 2.52 3.37 2.52 3.26 0.73 1.08 50% 14-18 29 1,093 1,773 19,731 1,235 11,571 20 2.8-3.6 98 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 8 Shortfall in recurrent resources(both domestic and External provided External financing is 10.3% of total public spending, the ESP does not provide date for domestic recurrent resources) For Primary education For post-primary education % of shortfall comprising primary school teachers’ salaries -381 -126 11 23 -371 99 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 4A: Selected Quantitative Targets in the 3 to 5 Year Action Plan 2009 (Base Year) 1 Gross Enrollment Rate Primary (total) 96.1 Female Junior High (Total) 80.2 Female 2 %age of Qualified Teachers in Government Schools Primary 58.0 % age Female Junior High (Total) 73.0 % age Female 3 Number of Text Books to be Procured and Distributed per Child Primary 1.5 Junior High (Total) 1.5 4 Number of New Classrooms to be Built Primary Junior High (Total) 2,643 5 Aggregate Recurrent Budget (GHc Millions) Primary Education Secondary Education Higher Education Other 6 Aggregate Budget for Capital Investments (GHc Millions) Primary Education Junior High Secondary Education Senior High Secondary Education 2011 2012 2013 98.0 99.0 100.0 84.7 86.9 89.1 70.3 76.5 82.7 80.3 84.0 87.7 2.0 2.0 2.3 2.3 2.5 2.5 1,677 3,021 1,928 3,477 2,191 4,034 Cumulative 5,796 10,532 532.7 626.0 393.4 357.5 581.7 648.1 384.7 406.1 617.2 665.3 374.7 626.6 1,731.6 1,939.4 1,152.8 1,390.2 285.7 166.0 305.1 191.0 326.3 221.6 917.1 578.6 103.2 89.5 96.1 288.8 Source: Data drawn from "Updated ESP" 100 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 4B: Performance and Disbursement of Externally Funded Primary Projects/Programs MULTILATERAL/ BILATERAL FUNDED PROJECTS DISBURSEMENT (US$) EXPECTED DISBURSEMENT AMOUNT US$ SOURCE French Embassy PURPOSE Teacher/Student training and Scholarships TYPE Grant 2008 436,466 2009 333,643 2011 294,380 2012 275,913 2013 275,913 DFID Support to Education Strategic Plan Grant 38,843,596 24,268,361 25,600,000 25,600,000 16,800,000 IDA Education Sector Project Country Programme Education Loan 10,468,307 6,013,733 21,200,000 * - Grant 4,333,047 2,036,030 3,750,000 ** - USAID Improve quality and access to basic education Grant 8,595,122 6,912,841 9,300,000 AfDB Development of Senior Secondary Education Project Loan 6,149,256 5,101,944 9,500,000 JICA Education Programme (including Grant Aide for Community Empowerment) Country Programe Support to Basic Education Grant 2,373,757 8,822,013 6,279,853 Grant 3,886,567 5,773,222 6,520,000 EC Micro Project Grant 9,232,108 - BADEA Basic Education Support Project Grant 6,687,405 UNICEF WFP TOTAL 91,005,630 5,000,000 5,000,000 * 8,042,759 - 862,759 ** - - - - - - - - 59,261,787 82,444,233 38,918,672 22,938,672 * Project expected to end in 2011. ** New programmes tol be developed in 2011 for 2012 - 2017. 101 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 4C: Capacity Constraints and Plans to Overcome Them Domain Nature of capacity Constraint Describe Proposed Plan to Strengthen Capacity Pre-service training • Teachers not always recruited from high-need areas • Expand number of teachers from deprived areas trained each year by decentralizing hiring and firing powers to the district offices In-service training • Lack of motivation for INSET • Delay in teacher training on new curriculum • Eliminate study leave or create incentives for teacher retention after completing study; replace study leave with better INSET Recruitment • Understanding the effect of PTR on quality and costs • Inability to attract and retain committed and qualified teachers to remote areas, due to lack of basic amenities. Teacher deployment is not effective • Rationalize teacher posting • Improve teacher accommodation infrastructure Teacher evaluation • High Teacher absenteeism and low time on task due to weak head teachers • Better support to head teachers School inspection • Schools are going un- or undersupervised • Set up National inspection Board Teacher recruitment, support and development Managing the impact of HIV/AIDS on the teaching force Student assessment and curriculum development Standardized testing • Ghana participates in TIMSS, NEA and SEA Test banks for diagnostic testing Curriculum development (incl. HIV/AIDS and gender aspect) Data for better management Education Management Information System Expenditure tracking • Introduction of school report card to sensitize community to school performance • There is a routine for curriculum review, but changes to allow lower primary teaching in the mother tongue have still to be incorporated. • College of Education curricula are apparetnly not well aligmed with school curricula. • School curriculum may need revision in some areas. • CoE curriculum requires revision, and some measure of specialization should be considered. (These aspects are not clearly reflected in the ESP.) • Untimely and poorly accessible EMIS • Rethink the EMIS process to improve its timeliness and availability • PETS 2007 identified leakages in the delivery of textbooks and capitation grant. Plus it highlighted the complexity of the funding flow • Address issues identified Systems for gender In place. disaggregated data collection and analysis Procurement/Contracting Systems Distribution of instructional Textbooks do not seem to reach materials pupils: textbook ratio remain low. School construction • Limited funds for capital investment • Target donor funds to capital investment Promotion of schooling among target populations 102 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 School mapping to improve accessibility of schools • No school mapping has been done in recent years and such exercise is needed to construct a baseline for planning • Conduct with Donor support a GPS school mapping exercise, assign to each school their GPS coordinates to be quoted in all data collection exercise to ensure compatibility between data sources School design (including water, sanitation…) • All newly build government schools follow a standard design including teacher accommodation and toilet facilities, however community built schools do not respect government standards • Use infrastructure funds to bring sub-standard schools up to standard Design of demand-side financing interventions (including children orphaned by AIDS and other causes) Administration and Management National-level budgeting and • There are common problems with financial management under- budgeting and GOG releases. In particular P.E. tends to attract most of the funds • Rationalize teacher recruitment by decentralizing hiring and firing powers and payroll activities at district level Sub-national government administration • The education system is currently very centralized and there are serious communication issues between the headquarters and the district and regional offices • Develop and implement with the assistance of development partners a roadmap to decentralization. Capacity and structures for mainstreaming gender • Gender related programs are run by the Girls Education Unit, which suffers from lack of funds • Increase funding to the Girls Education Unit • Tighten the relationship between the GEU, civil society and NGOs to run small scale localized programs Legal/Institutional Framework Enactment of laws to facilitate EFA FTI implementation In place. Removal of legal impediments to primary education In place. Enactment of laws on discrimination and equal opportunities (gender, HIV etc) In place. School-level capacity School head leadership Parent-Teacher Association • Headmasters are poorly trained motivated and paid (GHc 1 per month allowance) • Train headmasters in school management and improve their salary • Some SMC/PTAs not functioning • Consistently retrain PTA members due to strong turnover • Implement School Report Cards 103 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Early draft of the ESP was more widely circulated and discussed at ten regional 3-day workshops involving districts and key stakeholders. Circulation and feed-back from subvented agencies, GNAT and development partners. Greater ownership than before Members of PBME much more involved in writing sections of ESP and the process generally Table 5: Consultation with Stakeholders Stakeholders Date(s) of Past or Planned Consultation Government Legislature Format/ Duration of Consultation Any Issues Raised Presented to the parliamentary select committee on education during the hearing on the education budget, because the new ESP is the main driver of the budget. Through the budget hearing on the education budget. There is a representative from the MoFEP at education sector group meetings. Through the Medium Term Development Plan process. Finance Ministry NDPC Ministry of Gender/ Women’s Affairs The new ESP was shared with the Ministry for their input and during the final stages of compiling the Plan a presentation was made to the Ministry during their review retreat. Other Line Ministries NESAR 2009 MoHSW and other social sector MDAs were part of NESAR 2009, which fully discussed the ESP. Regional Government NESAR 2009 They form the core of regional level interactions during NESAR. A presentation was also made to regional Ministers during their retreat. An early draft of the ESP was discussed during ten regional 3-day workshops involving districts and key stakeholders. Local Governments NESAR 2009 They form the core of regional level interactions during NESAR. A presentation was also made to regional Ministers during their retreat. Civil Society Civic and/or Indigenous Groups NGOs (including HIV Girls’ Education Network) Key Women’s Organisations/ Networks Stakeholders Principals Comment on Quality of Consultation Participated in district level interactions. NESAR 2009 Participated in district, regional or national interactions during NESAR. AWE has participated in the process. NESAR 2009 Participate in district level interactions; some also participate in NESAR. 104 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Teachers Administrators/ Inspectors The Ghana National Association of Teachers (GNAT) gave feedback on the draft. NESAR 2009 The annual performance review meetings at district level involve these groups. Some also participate in NESAR. Participate in district level interactions. Bilateral agencies (DFID, USAID, JICA, French Embassy) NESAR 2009 ESWG meetings All education DPs were part of NESAR 2009, which fully discussed the ESP. The ESP was discussed in regular ESWG meetings as well. Multilateral Agencies (World Bank, UNICEF, WFP, UNESCO, AfDB) NESAR 2009 ESWG meetings All education DPs were part of NESAR 2009, which fully discussed the ESP. The ESP was discussed in regular ESWG meetings as well. International NGOs (PLAN, CARE, Action Aid, IBIS) NESAR 2009 ESWG meetings All education DPs were part of NESAR 2009, which fully discussed the ESP. The ESP was discussed in regular ESWG meetings as well. Parents/Students/ Local Community 105 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Table 6: Summary of Technical Appraisal Domain of evaluation Summary comment Score 1 Knowledge base underpinning the sector plan What is its quality, judging from the available documentation? What critical gaps in the data and analysis remain? Sound external studies, extensive academic research, preparatory Government studies, and regular sector performance reports. Financial and unit cost analysis limited. Currently reliance on outdated data, e.g. classification of deprived districts. A reclassification based on recent data is underway. 3.5 3 2 Content of the sector plan in terms of strategic long-term direction To what extent is it fiscally viable? How sound are the tradeoffs it makes in coverage & service delivery? The plan is over-ambitious. The funding gap of GHc7.2 billion is unlikely to be bridged. Reasonable. The question is whether the proposed efficiency measures will be energetically implemented with sufficient political buy-in. 2.5 3 3 Content of the short-term action plan Are budget allocations in the METF consistent with the plan’s ambition? How feasible are the plans for scaling up? How ready is the plan for implementation? How well will the most important capacity constraints be addressed? The ASEOP (costed operational plan) is aligned with the MTEF. Treasury has consistently allowed gross overspending on remuneration, calling into question the seriousness of Treasury expenditure ceilings. The new Minister of Education (January 2011) is committed to ensure greater fiscal discipline. With sufficient donor harmonisation innovations in the country can be scaled up to national coverage. Sufficient institutional capacity exists to make this achievable. Unit costs will need to be constrained to ensure financially sustainability. The overall plan has been in circulation for over a year with good readiness for the first priority activities. Further work will e required to finalise draft policy documents such as those on on teacher professional development and Special Educational Needs. Clear coordination across responsible units is critical and the appointment of a new Director General in the Ghana Education Service should ensure strong leadership. Capacity constraints will be addressed through a common capacity development plan that DPs have committed to align behind. . Capacity at district and school level is already addressed in the plan. 3 3.5 3 3.5 4 Consultation with stakeholders How strongly has the plan been endorsed by other parts of government, esp. the Ministry of Finance? The Education Ministry has consulted across government including with the Ministry of Labour and Social Welfare, the Ministry of Local Government and National Development Planning Commission NDPC. The Ministry of Finance has assigned a Education focal point who provides guidance and has endorsed the Plan. 3.5 106 Appraisal of Ghana’s Education Sector Plan 2010-2020, March 2012 Domain of evaluation How acceptable is the plan to key stakeholders in the education system? How acceptable is the plan to members of civil society? How strongly has the plan been endorsed by the donor community? Summary comment Since it is comprehensive, it addresses the core concerns of the key stakeholders. The import of the target PTRs has probably not been appreciated by teachers. The implications of the squeeze on tertiary financing has probably not yet been absorbed by finance officers at tertiary institutions. Involvement of civil society has been active from the onset of the planning process, an umbrella organisation GNECC have consulted with partners and their members were also key to the annual review discussions on the plan and monthly sector meetings. They recognise that key priorities are integrated into the plan but comprehensive funding remains a challenge. Donors actively participated in debate and discussion to shape the plan during the 2009 and 2010 annual reviews and have endorsed the final draft. Country Heads will discuss the plan this quarter and HQs are providing comments. Score 3.5 3.5 3.5 5 Overall Appraisal a/ Using a scoring system (e.g. from 1 very poor- to 4 -very good) has the virtue of collapsing a large amount of information into a single number. While this makes it easier to gauge where the country comes out, the scores are obviously not intended to be used mechanically. The ESP can be regarded as credible. But implementation will have to be carefully monitored at more frequent intervals than the annual review, with remedial action as soon as slippage is detected. The Education Sector Working Group (ESWG) should play a role in this monitoring, not just of targets, but of processes. 3 107