Uganda Evaluation Week 2015, International Conference Hotel Africana, - - PowerPoint PPT Presentation

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PERFORMANCE OF PUBLIC-PRIVATE PARTNERSHIPS IN DELIVERING SOCIAL SERVICES: THE CASE OF UNIVERSAL SECONDARY EDUCATION POLICY IMPLEMENTATION IN UGANDA

• M. Barungi, J. Wokadala & I. Kasirye

Uganda Evaluation Week 2015, International Conference Hotel Africana, Kampala, 12th – 13th March 2015

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CONTENT

Background Methodology Findings & Conclusion Options for policy consideration

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BACKGROUND

GoU initiated USE policy in 2007 - to consolidate UPE gains & ensure equitable access to secondary education for all eligible students regardless

• f their socio-economic background.

Implementation of USE policy heavily relies on the partnership between MoES & selected privately owned secondary schools – “USE PPP” The USE PPP is largely driven by limited public secondary school infrastructure, which would otherwise limit access to all qualifying children. MoES chooses private secondary schools to partner with & an MoU is signed with them to ensure that they comply with USE policy’s implementation guidelines.

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WHY PPP IN EDUCATION SERVICE PROVISION?

1) Public funding of private schools is justified by the argument that poor students will benefit from the opportunity to enroll in private schools of superior quality than the public schools that would

• therwise be their only option.

2) Contracting out education services enables Gov’ts to quickly expand access without incurring any up-front expenditures on constructing & equipping new schools.

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LOW SECONDARY SCHOOL ENROLMENT Despite the introduction of USE, enrolment for secondary education remains low - below 30 percent. It should be recognised that the attainment of the USE policy

• bjective depends on how well

the actors in the USE PPP press towards the goal. Therefore, we provide insights into the performance of the USE PPP. GER rates in secondary schools

Source: Education Management Information System 2000 -2012

5 10 15 20 25 30 35 2 0 0 0 2 0 0 1 2 0 0 2 2 0 0 3 2 0 0 4 2 0 0 5 2 0 0 6 2 0 0 7 2 0 0 8 2 0 0 9 2 0 1 0 2 0 1 1 2 0 1 2

GROSS ENROLMENT (%) All Boys Girls

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LINK BETWEEN PERFORMANCE OF THE USE PPP & ATTAINMENT OF THE POLICY OBJECTIVE

Attributes of good PPP performance

• Relevant
• Effective
• Efficient
• Sustainable
• Participation
• Accountability

Successful implementation of the USE policy

• All stakeholders

(Government, private schools, parents, etc) fulfil their mandates.

• Effective

monitoring and evaluation of policy implementation. Increased and equitable access to secondary education

• Increased

enrolment

• Reduced

dropout

• Increased

completion

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DATA AND SOURCES

Secondary data - Education Management Information System (EMIS) Primary data – collected in June 2013 from a survey of 61 private USE schools in Arua (11), Iganga (18), Kibaale (9) & Luwero (23).

• Respondents in the collection of primary data include: Sch.

Directors, Headteachers, Chairpersons B.O.Gs, & Bursars.

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DATA ANALYSIS: INTEGRATED FRAMEWORK FOR ASSESSING PUBLIC-PRIVATE PARTNERSHIPS – BY LUND-THOMSEN (2007)

The analytical framework adapted for this study is a modification of the OECD’s standard aid evaluation criteria, which assesses PPP performance, based on five criteria namely relevance, effectiveness, efficiency, impact and sustainability. However, the integrated framework looks at Seven criteria namely: 1) Relevance, 2) Effectiveness, 3) Efficiency, 4) Impact, 5) Sustainability, 6) participation, & 7) Accountability. During the assessment, for each criterion, the respondent is asked to discuss with examples, a set of four questions/issues. Based on the information provided by the respondent, the enumerator, makes an objective assessment of each criterion & assigns numbers 1-3 ; where 1 =True; 2 = True but to a less extent; & 3 = Not true.

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INTEGRATED FRAMEWORK FOR ASSESSING PPPS

Criterion Discussion points Relevance

• Clarity of partnership objective(s) & whether the PPP
• bjectives are in line with those of the partnering institutions.
• whether the PPP objectives meet the perceived needs of the

stakeholders;

• whether the stakeholders are supportive to the realization of

the PPP objectives. Effectiveness

• whether the PPP has yielded the intended objectives.
• whether the achievement of the intended objective is indeed

remarkable

• whether the PPP is being implemented as per the guidelines.
• whether the stakeholders are satisfied with the
• utputs/outcomes of the partnership.

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INTEGRATED FRAMEWORK FOR ASSESSING PPPS

Criterion Discussion points Efficiency

• whether the public financial contribution is adequate
• whether the private partners are using the available resources
• ptimally
• Whether the private partners have adequate resources to enable

them implement the activities of the PPP

Impact

• Whether the PPP has yielded un-intended consequences
• Whether the PPP has co-opted stakeholders
• Whether in the PPP regulatory efforts are respected
• Whether the PPP has an effective monitoring & enforcement system.

Sustainability

• whether the PPP achievements are sustainable in the long run
• whether the PPP can financially sustain itself
• whether the organizational structures created through the PPP will

continue to exist.

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INTEGRATED FRAMEWORK FOR ASSESSING PPPS

Criterion Discussion points Participation

• whether the intended beneficiaries of PPPs

have had any influence on the design, implementation, monitoring and evaluation of PPP initiatives. Accountability

• whether there are internal checks and

balances in the PPP that can be used to guide the conduct of its participants and enforce agreed-upon rules.

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RELEVANCE OF THE USE PPP

Nearly 77% of the Headteachers s are fully aware of the objective

• f partnering with MoES, which is to increase access to secondary

education. Headteachers are satisfied with the USE support in terms of capitation grant and the teaching resources.

• capitation grant – received in lump sum, which enables school

management to pay teachers’ salaries, expand and establish new infrastructure, and undertake other activities as per their work plans.

• Non-monetary support, e.g. textbooks for mandatory subjects, teachers’

guides, in-service training of teachers, English dictionaries and pronunciation CDs, and laboratory equipment and chemicals.

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RELEVANCE OF THE USE PPP …

Stakeholders are to some extent supportive to the realization of the

• bjective of the USE policy.
• Parents:
• Take and register their eligible students at school,
• some contribute to their children’s feeding by either paying lunch

fees in cash or in kind,

• others provide school uniforms and scholastic materials to their

children,

• many parents voluntarily contribute towards the purchase of

laboratory chemicals & apparatus, & construction of more school buildings.

• Political leaders:
• Some MPs actively participate in school fund raising activities to

support infrastructural developments.

• GISOs &DISOs monitor programme implementation

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EFFECTIVENESS OF THE USE PPP

About 74% of headteachers agreed that the USE PPP has yielded substantial increments in school enrolments

Contribution (%) of USE to O’ level enrolment 2007 - 2012

100 200 300 400 500 600 700 800 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 Number of students ('000) Boys Girls

17 29 38 49 55 60 83 71 62 51 45 40 2007 2008 2009 2010 2011 2012 USE Non-USE

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EFFECTIVENESS OF THE USE PPP …

Evidence of adherence to PPP guidelines e.g. All schools had certificates

• f accountability

All schools had set up Boards of Governors All schools were admitted

• nly eligible students.

Non-compliance to some extent e.g.

• Observed that some schools

were not displaying on their notice boards the funds received as USE capitation grants

• Many Headteachers

admitted that they disregarded expenditure guidelines especially the allocation to teacher’s salaries

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HOW EFFICIENT IS THE USE PPP?

Inadequate public financial contribution

• 3/4 of the Headteachers reported that capitation grant is

inadequate & has remained fixed at UGX47, 000 per student per term.

• Late release of funds - some schools reportedly borrow money from

either friends or banks (at high interest rate) to clear their bills. Sub-optimal use of resources by private partners – driven by limited infrastructure

• With increasing # of students enrolling, there is overcrowding in

streams -number of students per stream above 60, the permissible ceiling.

• Improper storage and display of textbooks, and laboratory chemicals

and apparatus.

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IMPACT - 67% OF THE RESPONDENTS REPORTED THAT THE USE

PPP HAS YIELDED MIXED AND UNEXPECTED CONSEQUENCES

Positive outcomes

Employment creation as a result

• f the need for additional

teaching and non-teaching staff Significant reduction in the cost

• f looking for students as well as

the burden of school fees collection Increased ease of implementing schools’ work plans – since the money comes as a lump sum increased access to information; ease of registration with UNEB – this is paid for under USE set up.

Negative outcomes

• Poor performance in UCE exams -

partly attributed to relaxed S.1 entry requirements and automatic promotion policy

• Deviant behaviour among students -

the law abolished corporal punishment - this has led to rampant student

• Increased irresponsibility among

some parents with the misconception that government USE grant caters for all school requirements.

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IMPACT …

Disregard of implementation guidelines, especially in the area of financial management “The school USE Bank Account shall be opened and administered by the Chair person Board of Governors and the Headteacher”

• However, many Headteachers complained that the school

Proprietors often hijack this role & do not spend the grant as per the approved budgets. All schools are regularly (at least twice a year) monitored & about 78% of the headteachers reported that they receive evaluation reports as feedback from the inspection/monitoring visits.

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SUSTAINABILITY OF THE USE PPP

Sustainable achievement: Trends seem to suggests that the USE PPP is able to achieve & sustain high O’level completion rates.

Source: Education Management Information System (EMIS) 2000 - 2012

18 23 25 20 28 34 33 39 39 42 45 48 52 14 19 19 17 22 26 25 31 31 31 32 33 34

10 20 30 40 50 60

2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012

Completion rate (%) Boys Girls

PRE-USE POST USE

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SUSTAINABILITY OF THE USE PPP …

Financial sustainability - sustainable flow despite being insufficient

• MoFPED annually allocates funds for USE programme
• Private USE schools raise additional funds through tuition fees

paid by the purely self-sponsored students & other charges (e.g. development fee) that are paid by both USE & non-USE students. Existence of organizational structures, specifically created to play an oversight role.

• every private USE school had this governance structure in place

to;

• ensure expending of USE grant as per the guidelines and
• monitor the implementation of USE

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PARTICIPATION OF STAKEHOLDERS IN THE USE PPP

Stakeholders e.g. school proprietors, teachers, members of BoGs, & PTAs were consulted before signing the MoU. Three quarters of the Headteachers believe that stakeholders have an influence on USE policy implementation. E.g.

• S
• Parents, local, religious & political leaders are usually invited

to schools to make decisions regarding, e.g.

• how much fees to charge on USE students;
• how to provide students with lunch
• organizing fundraising functions for a particular cause
• recruitment of new staff, etc.

About 66% of Headteachers agree that teachers & parents have taken their own initiative to monitor USE PPP activities.

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ACCOUNTABILITY IN THE USE PPP

There is a system in place to guide the conduct of people or institutions participating in the partnership. MoES (2007). Policy and Operational Arrangements for Implementation

• f Universal Secondary Education (USE).

Despite the existence of systems for accountability, to an extent power is abused by the school proprietors.

• E.g. some Headteachers have little knowledge of USE funds

received by their respective school because they are not signatories to the school USE accounts.

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SUMMARY OF OVERALL PERFORMANCE OF THE USE PPP

Source: Authors’ computations based on field survey data

66 66 34 66 35 62 78 32 31 43 27 52 30 19 2 3 23 7 13 5 3

Relevance Effectiveness Efficiency Impact Sustainability Participation Accountability TRUE True to an extent Not true

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EMERGING OPTIONS FOR POLICY CONSIDERATION

1

• Introduce a small new

tax and earmark a portion of accrued revenue for USE implementation, with intent to gradually increase the capitation grant per USE student in tandem with changes in the cost of education inputs. 2

• Introduce

consequences for disregarding the recommendations from the school monitoring/inspection report 3

• Create awareness

and sensitize stakeholders about their roles and responsibilities: This will increase compliance and support towards the realization of the intended objectives

• f USE programme.

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I thank you for your kind attention