LAO PDR 2009: Final Report

Education Sector Development Framework

Final Consultants’ Report

ADVISORY TECHNICAL ASSISTANCE TA 4907-LAO

LAO PDR: SECTOR-WIDE APPROACH IN EDUCATION SECTOR DEVELOPMENT

Cambridge Education Ltd

September 2009

Ministry of Education

Burapha Development Consultants Co Ltd Lao PDR

"This document has been prepared for the titled project or named part thereof and should not be relied on or used for any other project without an independent check being carried out as to its suitability and prior written authority of Cambridge Education (CE) being obtained. Cambridge Education accepts no responsibility or liability for the consequences of this document being used for a purpose other than the purpose for which it was commissioned. Any person using or relying on the document for such other purposes agrees, and will by such use and reliance be taken to confirm his agreement to indemnify Cambridge Education. (CE) for all loss and damage resulting there from. Cambridge Education (CE) accepts no responsibility or liability for this document to any party other than the person by whom it was commissioned."

"To the extent that this report is based on information supplied by other parties, Cambridge Education (CE) accepts no liability for any loss or damage suffered by the client, whether contractual or tortuous, stemming from any conclusions based on data supplied by parties other than Cambridge Education (CE) and used by Cambridge Education (CE) in preparing this report."

ANNEX 1. CONSULTANT TERMS OF REFERENCE

ANNEX 2. KEY MEETINGS, SCHEDULE OF WORKSHOPS AND KEY PEOPLE MET

ANNEX 3. ESDF GOVERNANCE AND INSTITUTIONAL REFORMKEY OUTPUT:

FINAL PRESENTATION

ANNEX 4. HUMAN RESOURCE KEY OUTPUT:

MANUAL FOR POLICY, LEGISLATION AND IMPLEMENTATION WITH HR IMPLICATIONS

ANNEX 5. SOCIAL DEVELOPMENT AND INCLUSIVE EDUCATION KEY OUTPUTS:

5i Final Presentation – IE Policy Writers Workshop, 25th March 2009

5ii Summary Report - ESDF Social Development and Inclusive Education Workshop, 6th February 2009

5iii Models of Barriers to Inclusive Education and Corresponding Strategies

ANNEX 6 6i Performance Assessment Framework

6ii ESDF Preparation Program

ANNEX 7. DOCUMENTS REFERENCED

The ADB TA Team would like to acknowledge the excellent support and guidance provided by a wide range of stakeholders in the process of finalizing the ESDF and in the development of three Sector Studies and a Performance Assessment and Capacity Framework. In particular the TA team worked closely with staff in the following MoE departments and education offices, mass organizations, INGOs and development partner offices that provided invaluable technical advice and support. This collaborative working arrangement contributed to an effective and productive process of consultations leading to the success of this technical assistance:

 The ESDF Project Director and members of the ESDF Task Force teams

 The Department of Planning and Cooperation

 The Strategy, Research and Education Analysis Center

 The Center for Promotion of Women, Ethnic and Disabled People

 The Statistics and Technology Education Information Center

 Education representatives in Luangnamtha Province

 The Department of Non-Formal Education

 The Department of Pre-School and Primary School Education

 The Department of Secondary Education

 The Department of Technical Vocational Education

 The Department of Higher Education

 The National University of Laos

 Representatives of the Mass Organizations in Lao PDR

 Members of the Education Sector Working Group

 Representatives of International NGOs

ADB Asian Development Bank

AusAID Australian Assistance for International Development

BENC Basic Education in Northern Communities

BG Block Grant

CB Capacity Building

CDF Capacity Development Framework

CE Cambridge Education

CEDC Community Education Development Centers

CEWED Center for Promotion of Women, Ethnic, and Disabled People

CPWEG Center for Promotion of Women and Ethnic Groups

CSOI Committee on State Organization Improvement

DEB District Education Bureau

DHE Department of Higher Education

DNFE Department of Non-Formal Education

DoF Department of Finance

DOEI Directorate of Education Inspection

DP Development Partner

DPC Department of Planning and Cooperation

DPO Department of Personnel and Organization

DPPE Department of Pre-School and Primary Education

DSE Department of Secondary Education

DTT Department of Teacher Training

ECE Early Childhood Education

ECE Early Childhood Education

EFA NPA Education For All - National Plan of Action 2003-2015

EQIP Education Quality Improvement Project

ESDF Education Sector Development Framework

ESDF PP Education Sector Development Framework Preparation Plan

ESWG Education Sector Working Group

FG Focal Group

FoE Faculty of Education

FTI Fast Track Initiative

GDP Gross Domestic Product

GER Gross Enrolment Rate

GIR Governance and Institutional Reform

GoL Government of Lao PDR

GTZ Gesellschaft für Technische Zusammenarbeit

HE Higher Education

HEI Higher Education Institution

HRM/D Human Resource Management/Development

IE Inclusive Education

IEC Inclusive Education Center

INGO International Non Government Organization

IVET Integrated Vocational Education and Training

LABEP Laos Australia Basic Education Program

LI Legislative Instrument

M&E Monitoring and Evaluation

MDG Millennium Development Goals

MoE Ministry of Education

NER Net Enrolment Rate

NESRS National Education Sector Reform Strategy

NFE Non-Formal Education

NGO Non-Government Organization

NIEP National Inclusive Education Policy

NSAW National Strategy for the Advancement of Women

NSEDP National Socio-Economic Development Plan

NUOL National University of Laos

OIC Organizational Improvement Committee

PA Pedagogic Advisor

PACSA Public Administration and Civil Service Agency

PAF Performance Assessment Framework

PAF/CD-IR Performance Assessment Framework, Capacity Development and Institutional Reform Advisor

PAM Policy Action Matrix

PES Provincial Education Service

PPTA Project Preparation Technical Assistance

PRSO Poverty Reduction Support Operation

PTA Parent Teacher Association

RDM Regulatory Drafting Matrix

SDIE Social Development and Inclusive Education

SIP School Improvement Program

SoQ Schools of Quality

SREAC Strategy, Research and Education Analysis Centre

SREAD Strategy, Research and Education Analysis Division

STEIC Statistics and Technology Education Information Centre

T/L Teaching/learning

TA Technical Assistance

TEI Teacher Education Institution

TOR Terms of Reference

TTS Teacher Training School

TVET Technical and Vocational Education and Training

VEDC Village Education Development Committee

WB World Bank

WG Working group

WM Working meeting

E E X X E E C C U U T TIIV V E E S S U U M M M M A A R R Y Y

The Technical Assistance (TA) was designed to assist the Ministry of Education (MoE), Government of Lao PDR (GoL) to develop a phased 10-year expanded Education Development Sector Framework (ESDF) for developing a sector wide plan. The TA team was tasked with incorporating the priorities of the National Education System Reform Strategy (NESRS) and the National Socio-Economic Development Plan (NSEDP). The ESDF is formulated on an assessment of the progress in achievement of the Education For All National Plan of Action (EFA NPA) targets at the primary, lower secondary and upper secondary levels and the national goals to be achieved in the NFE, TVET and HE sectors. The increase in demand for basic and post basic education and the ensuing expansion of the education sector will require additional physical facilities, teachers, textbooks and learning materials, and institutional and management capacity at all levels. The ESDF reflects the requirements of the Education Law and policy on technical vocational education (TVET), higher education (HE), non-formal education (NFE) and inclusive education (IE). The ESDF also provides a financial plan for short, medium and longer term expenditure and a draft policy matrix to support the education reforms.

The tasks of the TA team have the following objectives:

 Develop a 10-year strategic framework for the education sector;

 Ensure that stakeholders adopt and implement the framework as a joint longer-term planning tool;

 Ensure that the framework is used as the basis for developing annual prioritized costed plans; and

 Assist MoE, Education Sector Working Group (ESWG) and the Government of Australia-funded Education Advisor to produce the first annual prioritized costed plan, and FTI application.

The extension period from October 2008 to June 2009 was initially intended to support the development of an expanded ESDF building upon the ESDF for General Education completed in April 2008. The expanded framework incorporates education governance, planning and management, technical vocational education (TVET), higher education (HE), non-formal education (NFE) and inclusive education (IE) providing a full sector framework. The International and National consultants, contracted by ADB with AusAID funding, worked in four teams (i) Governance and Institutional Reform (GIR Team), Human Resource Management (HRM Team), Social Development and Inclusive Education (SDIE Team) and Performance Assessment Framework and Capacity Development/Institutional Reform Planning (PAF/CB-IR Team). The timing and duration of each TA input is detailed in Table 1. The specific TORs for this extension period are provided in Annex 1. A summary of progress against the TOR for each TA team is presented in Section 1.2.

The consultants worked with their respective Focal Groups, Departments of the MoE and mass organizations of Lao PDR to fulfill the TOR and additional tasks in the drafting of the ESDF and its implementation in each specialist area. The ESDF Focal Groups were established by the MoE, through a ministerial decree, to institutionalize ESDF drafting and implementation. The members appointed to each focal group are listed in Annex 1. The consultants also worked in full collaboration with the development partners and INGOs working in the education sector in Lao PDR and participated in ESWG meetings by invitation.

The TA Teams undertook a series of formal and informal meetings throughout the extension period for discussion of proposals and preparation of workshops, in partnership with the Focal Groups, Development Partners and other key stakeholders. A summary of the key meetings and the key people met is provided in Annex 2. Additionally each TA Team prepared and conducted a number of workshops for capacity development, continuous consultation and on-going information exchange. The workshops are listed in Annex 2 with brief workshop summaries included in the main text. A field visit was undertaken to the Luangnamtha Province informing the sector studies of the TA teams. The team was accompanied by an official from the Ministry of Education DPC. A comprehensive Field Visit Report was prepared by the TA team and submitted to the MoE and ADB.

Table 1: ADB/Cambridge Education TA Mobilization Schedule, Oct 08 to June 09

Andreas Reinsch 4 Governance and Institutional Reform Advisor (GIR) 23rd Oct 08 to 7th Dec 08

John Dewar Wilson 4 Human Resource Management Advisor (HRM)

Marion Young 4

Development and Inclusive Education Advisor (SD+IE)

9th Jan 09 to 24th Mar 09

24th Nov 08 to 23rd Dec 08

11th Jan 09 to 9th April 09

22nd Oct 08 to 13th Dec 08 14th Jan 09 to 26th Mar 09

Trevear Penrose 3

The TA team was mobilized in October 2008 coinciding with the final phase of consultations and revisions to the expanded ESDF. Subsequently three sector studies were produced and practical ESDF implementation tools were prepared and presented with extensive participation from MoE department heads and key officers. The GIR team developed a

Regulatory Drafting Matrix. A Manual for Policy Development and Legislation was drafted under the leadership of the GIR TA team with sections prepared by the HRM TA team. The SDIE TA team prepared an annex to the Policy Manual, specifically designed for IE Policy development. The SDIE TA team supported CEWED to develop a draft National Inclusive Education Policy. The PAF/CB-IR TA team drafted a Performance Appraisal Framework and Capacity Development and Institutional Reform Plan. These documents and tools are intended to facilitate the processes of ESDF implementation, policy development and legislation and are attached to the respective ESDF TA Sector Studies.

A final workshop of the full TA team was held in March 2009 at which the GIR advisor, the HRM advisor and the SDIE advisor presented the main conclusions and recommendations from their sector studies for information exchange and final comment. The PAF/CB-IR advisor presented an initial analysis of the implementation requirements for ESDF in relation to a performance assessment framework and capacity development plans. The Team Leader presented analysis of the funding requirement for ESDF implementation. The workshop participants included wide representation from the MoE, DPs and INGOs.

The three sector studies follow a common format including the key strategies, policy options and goals of the MoE for each study area, proposals for implementation of specific priority strategies in support of ESDF implementation, recommendations for policy development, institutional strengthening and capacity development, and recommendations for future measures in support of ESDF implementation. The Performance Assessment Framework, and Capacity Development/Institutional Reform Plans (reformulated as an integrated ESDF Preparation Plan), are products of a different kind. They are direct instruments supporting implementation.

The ESDF for General Education (grades 1-12) was completed in April 2008. It generated support and interest from all stakeholders including MoE and development partners. This prompted a change of scope for the ESDF TA extension phase designed to expand the ESDF to a sector wide plan, incorporating all the key elements of the education reform strategy. The ESWG, co-chaired by AusAID and UNICEF, monitors and guides the process of ESDF formulation. In April 2008 the Government of Australia committed an additional $477,000 equivalent to expand the scope of the ADTA and to cover the cost of additional proposed activities. Additional funding was also provided by EU and UNICEF for separate TA support, integrated into the process of ESDF formulation under the management and coordination of the MoE DPC. The expanded ESDF was finalized by the ADB TA team and approved by the Government of Lao PDR in December 2008.

The ESDF was comprehensively reviewed in the FTI Appraisal Report (January 2009) providing the basis for submission of a request for funds from the Fast Track Initiative (FTI) to help Lao PDR meet its goals of universal primary education. Through this FTI application process the development partners have endorsed the ESDF and in turn the FTI Secretariat has endorsed the GoL application for FTI funding.

The ESDF has also provided the basis for formulation of the annual, prioritized, costed sector plans for education 2009-2010 (February 2009), required to meet the conditions of the Poverty Reduction Support Operation (PRSO) process. The ESDF TA team provided inputs for their respective subsector into the development of the annual costed sector plan 20092010, coordinated and finalized by the AusAID Team Leader.

In parallel with the development of the expanded ESDF, the World Bank supported the development of a Capacity Development Framework (CDF). The TA team worked closely with the CDF team to indentify linkages and synergies between the two frameworks. The expanded ESDF is a comprehensive document intended to guide the development of the education sector as a whole and enable channeling of resources for more sustainable and efficient sector development. Following completion and approval of the expanded ESDF in December 2008 the TA team, in collaboration with the MoE DPC and respective Focal Groups, focused on three inter-related priority areas for implementation of the ESDF at each level in the education system:

(i) Identification of regulatory and policy requirements;

(ii) Assessment of capacity building requirements at organizational, institutional and individual levels; and

(iii) Development of a Performance Assessment Framework, a Capacity Development and Institutional Reform Plan

1.1 Key Outputs of the Expanded ESDF TA Teams

The intended outputs of the expanded TA were identified in the Major Change of Scope agreement between MoE, AusAID and ADB. Table 2 summarizes the progress against each intended output. Additional outputs of the TA team are also summarized, having been discussed and agreed with the MoE and AusAID/ADB. The TA team has worked to integrate the various elements of the ESDF, the annual sector plans and the CDF into their TA outputs.

Table 2: Progress against TA Outputs for the Expanded ESDF INTENDED OUTPUT PROGRESS

A short strategic paper which outlines key GOL policies and strategies in the education sector;

The first annual prioritized ESDF and associated costed sector plan;

Completed by the Focal Groups before the TA team were mobilized with support from the AusAID funded Team Leader.

Completed by AusAID funded Team Leader, with ADB TA team inputs

Annexes associated with the FTI submission; and Information was sourced by the TL from ESDF draft discussion papers and sector studies in preparation of the FTI submission

Revision and modifications to the existing ESDF document as necessary and appropriate.

On-going revisions and reference to the ESDF, initially contributing to the finalization with review of all DP and MoE feedback comments; subsequent to ESDF approval the TA team have focused on implementation issues, in particular policy and capacity development requirements

ADDITIONAL OUTPUTS PROGRESS

Preparation of three sector studies: Governance and Institutional Reform

Human Resource Management

Social Development and Inclusive Education

Draft Regulatory Framework

Draft Sector Studies finalized - proof read by the TL, QA’d by CE, and submitted to ADB for approval and submission to MoE.

Included in the GIR TA team Sector Study as an outcome of workshops and technical meetings with MoE focal groups

Draft Manual for Policy Development and Legislation

Prepared by the GIR and HRM TA teams with an annex prepared by the SDIE TA team. The manual has been presented to the GIR and HRM focal groups and the annex provided a policy document template used as a practical to guide in the first stage of drafting of the National Inclusive Education Policy

Draft Performance Assessment Framework (PAF)

Draft ESDF Preparation Plan

A completed draft of the ESDF Performance Assessment Framework, including the ESDF Policy Action Matrix

A completed draft of the ESDF Preparation Plan containing Capacity Development and Institutional Change needs

1.2 Progress against TA terms of reference

Governance and Institutional Reform

TOR Objective Progress against TOR TOR reflected in GIR Sector Study in:

6(i) Assist MoE to develop a process whereby a single and unified legal and regulatory framework, incorporating individual decrees and taking into account the Budget Law of 2006 can be developed

The GIR Team successfully assisted the ESDF GIR Focal Group in the development of a process whereby a single and unified legal and regulatory framework can be developed. The work was based on cooperation with the ESDF GIR Focal Group.

The GIR Advisors analyzed the policy development and regulatory drafting functions of the MoE. This work of the GIR Team has been characterized by a thorough mapping of existing institutional arrangements and intense consultations of options for institutional reforms leading to the identification of acceptable institutional arrangements for policy development and legislation/ regulatory drafting.

The GIR discussed the findings with the divisions and departments concerned. In addition to a number of informal meetings, four formal Focal Group meetings were held in February – March 2009 at which the ESDF GIR Team was invited to present options and findings. The need for institutional strengthening was also discussed with the Vice Minister of Education, during CDF meeting on 23rd January 2009.

The ESDF Focal Group for GIR, partly in cooperation with the HRM FG called for 3 official workshops targeting ESDF policy development and legislation drafting arrangements.

The GIR Advisory team has produced an ESDF Regulatory Drafting Matrix (RDM – Annex 3), a Manual for Policy Development and Legislation

Part 1 – Executive Summary

Part 3 – Situational Analysis

Part 3.1 – The regulatory framework for education in Lao PDR

Part 3.1.1 – The constitution about education

Part 3.1.2 – The Education Law about education

Part 4.1.1 - Policy Development and Legislation drafting in the MoE – Institutional Arrangements

Part 4.1.2 – Legislation drafting in the MoE

Part 5 – Proposed strategies for ESDF implementation

Part 5.1 – Proposed ESDF implementation strategy for governance and management

Part 5.2 – Proposed strategies and options for Institutional arrangements and the development of the policy drafting and legislation function of the MoE

Part 6 – Recommendations

Part 6.1 - Recommendations in the field of Governance and Management, Institutional reforms and Capacity development

Part 6.5 - Recommendations regarding identified Technical Assistance needs in the fields of Governance and Institutional and Organizational Strengthening

Part 6.5.1 - Proposed TA for the Strategy Research and Education Analysis Center (SREAC), Legislation Division and Quality Assurance Center

Annex Regulatory Drafting Matrix and Manual for Policy Development and Legislation,

Governance and Institutional Reform

TOR Objective Progress against TOR TOR reflected in GIR Sector Study in:

and proposals for institutional strengthening and capacity development supporting the achievement of this TOR task. All proposals and recommendations have been discussed and agreed with the MoE.

6(ii) Develop options for harmonizing tradition cultural systems (loyalty, patronage, fiscal self reliance) with modern government and management, across and within the different levels. Identify required change management strategies to support a transition process

Based on numerous meetings, a Field Visit undertaken in February 2009, and the experience and cultural competence of the National GIR Advisor, a set of practical options and recommendations have been worked out for harmonization of traditions and culture with modern government and management enabling ESDF implementation. The results of the work have proved to be very helpful for the work of the GIR Team itself.

The options for harmonizing Lao traditions and cultural systems with modern government and management are summarized in the ESDF GIR Sector Study.

Part 2.1 – Governance in Lao PDR

Part 3.2 – Education governance and management

Part 3.3 - Culture and traditions and modern governance and management

Part 4 - Challenges and priorities for ESDF implementation

Part 5 – Proposed strategies for ESDF implementation

Part 6.2 - Recommendations regarding harmonization of traditions and culture with modern governance and management systems

6(iii) Outline capacity building requirements for Division of Policy Analysis and identify how best to ensure that work of Division has an impact on policy development across the sector

The establishment of the Strategy Research and Education Analysis Center (SREAC) was continued and intensified following the discussions held with the SREAD. Numerous meetings and discussions have been held, formally and informal. The establishment of SREAC shows that the MoE gives high priority to the functions of policy research and development and recognizes the importance of these functions for ESDF implementation. This ministerial decision from the beginning of March 2009 strongly reconfirmed the work of the ESDF GIR Team.

The cooperation with SREAD, and SREAC enabled an

Part 3.3.2 - Human Resources for service delivery and education management

Part 4.1.1 - Policy Development and Legislation drafting in the MoE – Institutional Arrangements

Part 5 – Proposed strategies for ESDF implementation

Part 5.1 – Proposed ESDF implementation strategy for governance and management

Part 5.2 – Proposed strategies and options for Institutional arrangements and the development of the policy drafting and legislation function of the MoE

Part 6.1 Recommendations in the field of Governance and Management, Institutional reforms and Capacity

Governance and Institutional Reform

TOR Objective Progress against TOR TOR reflected in GIR Sector Study in:

effective and productive process and outcome.

The proposals and options for institutional development of the SREAD are included in the GIR Sector Study and the Final consultants report. They include options for institutional and organizational strengthening, staff requirements and a recommended procedure for policy development laid down in the Manual for Policy Development and Legislation

development

Part 6.5 - Recommendations regarding identified Technical Assistance needs in the fields of Governance and Institutional and Organizational Strengthening

Part 6.5.1 - Proposed TA for the Strategy Research and Education Analysis Center (SREAC), Legislation Division and Quality Assurance Center Annex Manual for Policy Development and Legislation,

6(iv) Explore options for improvement to linkages between Upper Secondary, TVET and higher education and potential need for basic skills training at earlier levels. The role of the private sector should also be included. These options should focus on developing flexible linkages between the sector and changing demands of the labor market. Identify impact on primary education of a policy for widespread introduction of preprimary education. Identify new areas for inclusion into the sector due to changing social demands, such as HIV/Aids education

6(v) Provide advice to the International ESDF Strategy, Program and Appraisal Specialist and International Financial and

The work in this field was finalized after intensive consultations with a range of stakeholders, national and international experts and specialists from the ESDF GIR Focal Group. Based on the TVET Master Plan the GIR Team identified options for the improvement of the linkages between TVET and the other education sub sectors. The field visit to the IVET in Luangnamtha Province in February 2009 was helpful and informative.

The ESDF GIR Team developed a TVET linkages improvement matrix systematizing options for linkages improvement. Additionally the unfolded proposals and findings for the improvement of linkages between TVET and other education sub sectors are included in the GIR Sector Study. The GIR Sector Study includes also some proposals for areas of inclusion into the sector in the recommendations.

International GIR Advisor gave advice to the Team Manager as requested during the entire period of the TA 4907-Laos.

Part 3.1.2 – The Education Law about education

Part 3.1.3 - Education Law based model of the education system of Lao PDR

Part 3.4 - Situational Analysis of Vocational Education and Training in Lao PDR (TVET)

Part 4.2 - Challenges and priorities for ESDF implementation regarding TVET strengthening and TVET linkage improvement

Part 5 – Proposed strategies for ESDF implementation

Part 5.3 - Proposed strategies for ESDF implementation in the field of TVET linkages improvement

Part 6.3 - Recommendations for the improvement of TVET and TVET linkages

Part 6.4 - Recommendations for inclusion in General education

Governance and Institutional Reform

TOR Objective Progress against TOR TOR reflected in GIR Sector Study in:

Performance Planning Advisor to enable identification of cost implications of suggested reforms

Human Resource Management

TOR Objective Progress against TOR TOR reflected in HRM Sector Study in:

(i) Review the efficiency of TEIs and HEIs including the MoE funded scholarship system*. Given the very high unit cost of TEIs, pay particular attention to the impact of special courses on teacher education programs. Together with the International Governance and Institutional Reform Advisor, identify the extent to which the current expansion of HE institutions and courses delivered are consistent with projected labor market demands

WB (2007) and Tibi (2009) indicated different bases for calculating unit costs of TEI. PPTA Inception Report for Strengthening Higher Education (2009) was studied. Visits to 1 TTC, 2 TTS and NUOL FoE identified relevant features of teacher training and issues facing management; interviews with DD DTT, DG and DD DHE, DG TVET and project staff, and senior management in NUOL provided information about policies for teacher and higher education. Study of TTEST reports and visits to 3 PES and 2 DEB provided information on trainee access to teaching positions; MoE DoF provided information about scholarships

Section 1.1.3 addresses the TOR including unit costs

Section 2.1.2.7 addresses recruitment to post-school education

Section 2.1.2.8 addresses access to TEI and HEI

Section 2.1.2.9 addresses the issue of special course students

Section 2.1.2.11 addresses internal efficiency of TEI and HEI

Section 2.2.1 addresses how trained teachers get teaching jobs

Section 2.3.5 provides information about improving skills of teacher trainers

Section 3.2.5.1 discusses priorities and challenges for making PES employers of teachers

Section 3.3.1 discusses how recruitment and selection for teaching might be improved

Section 4.4.1.1 makes proposals for selection for scholarships for HEI and teacher training

Section 4.4.2 proposes strategies to ensure trained teachers stay teaching

Section 5: Issues 3 and 4 recommend steps to manage supply and demand for teachers

(ii) Review previous institutional capacity building activities and identify reasons

Close study was made of reports of 4 recent and ongoing projects aiming to promote educator sector development, 1

Section 1.1.1 discusses the TOR

Section 1.2.4 discusses capacity

Human Resource Management

TOR Objective Progress against TOR TOR reflected in HRM Sector Study in:

behind the limited impact so far achieved.* Identify the extent to which training opportunities have been efficiently used and applied to future duties

study of teacher in-service training and 1 study of training needs of provincial and district education administrators.

Priority for implementing ESDF recommendations were identified at a workshop on 24 February and HR implications identified

A Manual on HR implications of policy making, legislation and implementation was drafted in association with the GIR international consultant, translated into Lao and introduced in workshops on 23 March and 1 April

HR implications of legislation involved in implementing ESDF were identified in a matrix designed by the GIR international consultant

HR implications of establishing SREAC were discussed with Center staff and in workshops on 23 March and 1 April

HR implications of introducing block grants were considered at a workshop on 7-8 April 2009

building

Section 2.1.2.13 discusses ‘upgrading’

Section 3.3.4 discusses current and needed strategies for professional development of teachers

Section 4.3 describes and discusses CDF as an approach to capacity building

Section 4.4.5 describes strategies for promoting on-thejob training

Section 5 Issues 6 and 7 make recommendations for promoting CB in MoE, PES and DEB

Section 5 Issue 8 recommends that advanced study of HRD be introduced in Lao PDR

Section 5 Issue 10 recommends that development partner projects are designed to promote best practice CB

(iii) In consultation with CSOI and the crossagency secretariat under the chair of PACSA, assist the MoE Organizational Improvement Committee (OIC) to develop policies to improve the impact of capacity building*, including succession planning for senior managers. Advice should also be sought

Meetings were held with staff in relevant MoE agencies viz. PACSA, DOP, 3 PES and 2 DEB

Work with SREAC, established on 4 March, provided information on how restructuring within MoE was managed and the consequent needs of staff

Section 1.1.2 specifically addresses the TOR

Section 1.2.4 discusses CB

Section 2.1.2.13 discusses ‘upgrading’

Section 2.2.6 discusses appointment to senior MoE positions

Section 2.3.6 discusses quality and relevance of management in civil service

Section 2.4.1 discusses quality of public administration and attempts to improve it

Human Resource Management

TOR Objective Progress against TOR TOR reflected in HRM Sector Study in:

from Provincial OIC based in the Governor’s office. The policy should give priority for women and ethnic people to access training opportunities

(iv) Provide advice to the International ESDF Strategy, Program and Appraisal Specialist and International Financial and Performance Planning Advisor to enable identification of cost implications of suggested reforms

*Team Leader advised the HRM consultant on mobilization to focus his work on bolded TOR only and to ignore TOR iv as it was now superfluous

This TOR was not fulfilled as explained

Section 2.4.3 discusses current management arrangements and their weaknesses

Sections 2.4.4-7 discuss staff induction and capacity in MoE and related agencies to manage and lead development in an ethical manner

Section 3.5 discusses challenges and priorities for a better managed education service

Section 4.4.5 makes proposals for a better managed education service

Section 5 issues 6 and 7 make recommendations for supporting MoE, PES and DEB restructuring

Social Development and Inclusive Education

TOR Objective Progress against TOR TOR reflected in SDIE Sector Study in:

10(i) Identify key strategies of the gender, ethnic and pro-poor policies of Government, the SD assessment findings of the ADTA and other

Oct-Dec 08 : Initial discussions held with FG chair (CEWED); key documents were reviewed and key stakeholders consulted. The TA reviewed the ESDF drafts to ensure that the profile of IE has been raised in the 2nd

Summary of key strategies are given in Section 2.1-2.4 Issues relating to mainstreaming and capacity implications were outlined for achievement of the defined strategies in Sections

Social Development and Inclusive Education

TOR Objective Progress against TOR TOR reflected in SDIE Sector Study in:

project policies; elaborate and provide relevant priority policy options; include policy options for mainstreaming the policies of CPWEG at provincial, district and school levels

[NOTE 1: CPWEG renamed in mid-2008 and re-mandated as CEWED] [NOTE 2: CPWEG renamed in 2009 and re-mandated as IEC]

draft ESDF. Revisions were made to the targets set in the ESDF to align with EFA NPA and NSERS.

Jan-Feb 09 : Key education policy was reviewed for gender, ethnic groups, disabled, poor communities, NFE and ECE through meetings with MoE dept heads (DNFE, DPPE, DSE), DPs working in the sub-sector (SCN, EU, UNESCO, UNICEF) and INGOs. Consultations were undertaken with PES, DEB, VEDC and schools during the field visit to Luangnamtha in Feb 09.

Key IE activities from the ESDF were incorporated into the Annual Costed Sector Plan 2009-2010.

Policy and strategies for IE were reviewed in a series of workshops starting on 6th Feb, involving MoE, DPs and PES directors.

Mar 09 : Key strategies of gender, ethnic and pro-poor policies are summarized in the sector study; policy issues for IE are included in the Regulatory Framework (GIR TA Output) Mainstreaming strategies were formulated against theoretical concepts for mainstreaming. Mainstreaming strategies are outlined in the Sector Study

3.3 and 3.4 of the Sector Study

Priority policy options for IE were outcomes of the workshops in Feb and Mar 09, presented in the Sector Study Section 4 and Annex 1

10(ii) Analyze the involvement of NGOs across the whole sector and identify mechanisms for mainstreaming of best-practice approaches, including traditional sector activities and emerging areas of need such HIV/AIDs education, to the development of

Oct-Dec 08 : Review of project documents and initial assessment of the involvement of INGOs in the sub-sector including national coverage, and coordination of activities.

Meetings with INGO representatives including an Informal ESWG meeting to gather data and to identify the key issues and barriers in relation to best practice, mainstreaming and scaling up.

In Sector Study Section 3.6 the challenges, priorities and sustainability considerations for scaling up of IE interventions are outlined. Proposed strategies are given in Section 4.6.

Annex 5 provides summary examples of lessons learned from relevant projects

Sector Study Section 3.7.1 considers the impact of health including HIV/AIDS awareness on education access

Social Development and Inclusive Education

TOR Objective Progress against TOR TOR reflected in SDIE Sector Study in:

women, poor and disadvantaged groups. Identify lessons learned for introduction of ECCE to poor villages;

Meetings with MoE dept heads (DPPE and CEWED) to discuss mechanisms for internalizing best practice in the education system including the need for capacity building

Jan–Mar 09 : Continuation of discussions with INGOs and review of Project Reports including SCN IE and BENC exit strategy

Meetings were held with Basic Education FG chair, NFE Director and ECE dept head to identify lessons learned in ECE and NFE provision. A summary table of INGO involvement in IE project interventions was collated from INGO responses to request for information. Mainstreaming of best practice approaches and lessons learned are summarized in the sector study. Analysis of lessons learned from ECE provision to poor villages provided the basis for strategy recommendations in the sector study.

Issues relating to expansion of ECE access for children in poor villages are presented in Sector Study Section 4.5.

10(iii) Undertake an analysis of the SCN exit strategy for inclusive education and identify appropriate support structures required at different levels to implement a nationwide support structure for inclusive education

Oct-Dec 08 : Initial meetings with SCN – and review of relevant project reports provided the basis for identifying the current approaches to national implementation and the barriers to the achievement of inclusive education. The key issues were funding and capacity gaps.

Jan-Mar 09 : SCN and other DP exit strategies were analyzed and used to draw up a nationwide structure for IE for all outof-school children. The field visit provided an opportunity to observe the constraints and opportunities for scaling up and replication at province, district, village and school levels.

Sector Study Section 4.6 considers strategies for scaling up of best practice which includes the need for wellplanned exit strategies

Section 4.7 of the Sector Study provides some specific examples of lessons learned from education projects in Lao PDR.

Sector Study Section 4.1 presents a summary of the requirements for a National Structure for Inclusive Education

10(iv) Review the activities of DNFE and identify how new and

Oct-Dec 09 : Meetings with Basic Education FG chair and DNFE Director to identify

The IE Sector Study includes analysis and recommendations for NFE provision relating

Social Development and Inclusive Education

TOR Objective Progress against TOR TOR reflected in SDIE Sector Study in:

existing non-formal approaches might be used to achieve primary schooling for the 10% of children who currently have no access to any school due to severe remoteness;

lessons learned in provision of NFE, present strategies and the barriers yet to be overcome. Document review to identify current NFE activities and impact.

Jan-Mar 09 : Field study visit to Luangnamtha provided information on village and school level activities and barriers to primary school access for some children in remote areas. Discussion with EC BENC project team on an alternative model of NFE supported by the project. The visit also provided the opportunity to explore some options proposed in the ESDF such as school block grants and scholarships to bring children into school, which currently only operate through projects. Information gathered during the IE workshop on NFE programs, models working elsewhere.

specifically to access to primary education for children in rural villages in Sections 2.4, 3.7.2 and 4.4.

10(v) Identify priorities for policy implementation for social development and inclusive education. The work of the multi-sectoral gender mainstreaming toolkit produced by GPAR should also be taken into account.

Analysis of existing documents, strategies and action plans in CEWED and MoE revealed that the mechanisms are in place and in the process of implementation. The National Strategy for the Advancement of Women (NSAW) provides structure and training programs are in progress to raise awareness and build capacity at each level in the education system. The existing Gender Mainstreaming strategies were reviewed and revised in the IE policy prioritization and policy drafting workshops on 6th Feb, 18, 19th and 25th March 09.

The UNESCO Equity and Inclusion in Education Toolkit (UNESCO Apr 2008) is recommended in the Sector Study to support education sector planning and evaluation for further development of

Section 2.1 of the IE Sector Study provides a brief analysis of the gender education strategies in Lao PDR. Specific goals, policies and strategies for gender are included in the outcomes of the IE policy prioritization and policy drafting workshops on 6th Feb, 18, 19th and 25th March 09. The key outcome is included in Annex 1 of the Sector Study. In the Sector study the multidimensional nature of IE is emphasized. Gender as one element of inclusive education is implicit in all sections of the Sector Study. There are generic issues specific to the inclusion or exclusion of girls or boys in education. There are also some specific gender issues to be considered in the case of children with disabilities, children from poor families and children

Social Development and Inclusive Education

TOR Objective Progress against TOR TOR reflected in SDIE Sector Study in:

gender and IE policy and strategies. from ethnic groups.

10(vi) Review drafts of the ESDF to ensure that priority policy actions and strategies identified are pro-poor and aimed at increasing access of girls and women, ethnic people and other disadvantaged groups in an equitable manner

The TA team reviewed drafts of the ESDF prior to finalization by the Team Leader in December 2008. The review included a check to ensure that priority policy actions are pro-poor and aligned to an inclusive education policy and strategy. The final ESDF was strengthened in this respect and targets were aligned to the EFA NPA.

The resource implications and financial costing for IE were considered in the development of the annual costed sector plan 2009-2010. A key issue of feasibility for implementation of school block grants and scholarships was highlighted in the IE Sector Study

Specific analysis of pro-poor policies and education access for children from poor families is presented in the IE Sector Study Section 2.4.

The challenges and priorities for implementation are set out in Section3.7.4 Education access for children from urban and rural poor families.

Proposed pro-poor strategies for ESDF implementation are given in Section 4.2 Reducing Cost Barriers to Education – School Block Grants and Scholarships; Section 4.5 Introduction of ECE to Poor Villages and Section 4.71 and 4.72 examples of projects with scholarship and school block grant components.

Additional Task:

Development of three scenarios for implementation of 5+4+3 requested by ESDF Secretariat for presentation to ESDF technical working group meeting

Performance

Nov 08: Three scenarios for implementation of 5+4+3 school structure were developed, presented to MoE ESDF Secretariat and discussed by MoE Dept Heads to reach a decision on the implementation strategy.

Not relevant to the Sector Study

TOR Progress against the TOR

1 Development of a Performance Assessment Framework (PAF) to support the implementation of ESDF

The Draft Performance Assessment Framework (PAF) has been completed and presented and discussed in meetings with the DG DPC, a workshop with focal group heads, and a workshop with senior managers of most MOE Departments (by the DDG DPC). It was also outlined in a meeting of the ESWG (by the DG DPC).

Assessment Framework and Capacity Development/Institutional Reform Planning

Performance Assessment Framework and Capacity Development/Institutional Reform Planning

2 Formulation of a Capacity Development Plan (CDP) drawing on the Capacity Development Framework and focusing on capacity development requirements for ESDF Year 1

3 Formulation of an indicative draft Institutional Sector Reform Plan (ISP) to meet the future requirements of ESDF implementation within the Ministry of Education

1.3 Summary of major activities

An ESDF Preparation Plan (ESDF PP), comprising the two TOR in an integrated plan, has been completed. It has been presented by the DDG DPC and discussed in a workshop of senior managers of the MOE. (Reasons for the integration of the two TOR into one plan are explained in section 8 below.)

The major activities for this TA focused on the process of contributing to the development of seven key documents: (i) the ESDF, completed in January 2009; (ii) the Annualized Costed Sector Plan 2009-2010; (iii) a Manual for Policy Development and Legislation; (iv) the draft Legal and Regulatory Matrix; (v) the three Sector Studies completed in May 2009; (v) the draft National Inclusive Education Policy completed in May 2009; and (vii) the Performance Assessment Framework, completed May 2009, and (viii) ESDF Preparation Plan (including capacity development, and institutional change) completed in June 2009.

The TA team undertook a number of workshops and meetings which are summarized separately under each technical consultant’s report in Sections 3 to 6. The consultants’ final reports also include presentation of key outputs which arose from the workshops and other consultations. The Field Visit which was made to Luangnamtha in February 2009 is briefly presented in this final consultants’ report specific to the perspective of each technical team. It has been separately issued to the MoE and to the ADB in full, with a Lao translation of the executive summary distributed to the province.

The International GIR Advisor conducted two missions in the framework of the ADTA 4907Laos. Mission 1 started on October 23rd 2008 and ended on December 7th 2008. Mission 2 was from January 9th 2009 until March 23rd 2009. The National GIR Advisor coordinated her inputs with these two missions. Working on the specific TOR for this assignment the GIR advisory team undertook the following major activities between October 2008 and March 2009:

 Assisting the drafting of the ESDF;

 Institutional and organizational analysis specifically focusing on policy development and regulatory drafting in the MoE in relation to the requirements of the ESDF;

 Analysis of the regulatory framework for the education sector;

 Analysis of culture and tradition in relation to requirements of modern governance and management;

 Stakeholder consultations;

 Discussion and cooperation with MoE GIR Focal Group;

 Organization of workshops targeting the TOR;

 Field visit to Luangnamtha Province targeting deconcentrated governance and education management arrangements and verification of findings;

 Delivery of on the job capacity development and continuous advice on request;

 Analysis of TVET sub sector regarding options for strengthening of linkages;

 Elaboration of recommendations in response to TOR requirements; and

 Reporting and presentation of results and findings.

A major activity in the beginning of the assignment of the ESDF GIR Team was assistance to the AusAID funded international Team Manager in drafting the ESDF. This process was embedded in the work of MoE and guided by the ESWG. The TA Team worked closely together to meet the dead line set by MoE and ESWG for the completion of the draft ESDF. The draft ESDF was finalized in December 2009 and endorsed by the Prime Minister of Lao PDR in April 2009. An intensive analysis of the existing regulatory framework, drawing on laws, regulations and national policy documents as well as ministerial regulations was undertaken to explore options for institutional reforms and organizational arrangements. This analysis was complemented by an analysis of existing institutional arrangements and capacity within, focusing on policy development and legislation. The ESDF identifies numerous new regulations such as instructions, decrees, decisions and other regulations including different guidelines that underpin the entire ESDF implementation process.

The analysis of the policy development and legislation functions in the MoE resulted in the identification of institutional development and strengthening proposals and capacity development recommendations. All recommendations have been presented and explained to the GIR Focal Group and units concerned. An agreement on recommendations that will be taken further to the senior decision making level in the ministry has been reached. This activity commenced during the first mission and continued in January and February 2009.

A field visit was undertaken to the Luangnamtha Province in the north of Lao PDR. The GIR team organized a workshop exploring institutional arrangements at the local levels of education management and also the work of a VEDC’s in practice and visited the TVET School (IVET) in this province. These activities were closely connected to the TOR.

The work of the ESDF GIR was characterized by consultations, discussions and verification of proposals and recommendations with the MoE and the GIR Focal Group. The GIR Focal Group took ownership and leadership of the change process leading to institutional reform proposals in support of ESDF implementation. Additionally a number of consultations with different divisions and departments took place.

The GIR team organized two major ministerial workshops on the TOR issues in Vientiane. A Regulatory Drafting Matrix (RDM) has been developed to systematize the drafting work required to support ESDF. A prioritization workshop was held, chaired by the GIR Focal Group Leader in March 2009. The RDM instrument has proved to be very helpful for the prioritization of LI’s to be drafted and as basis for the work planning in this field. The institutional arrangements and organizational changes necessary for ESDF implementation were targeted by the institutional arrangements workshop in mid March.

The ESDF GIR Team produced practical tools for the work of SREAC and the Division responsible for legislation. These tools are the Regulatory Drafting Matrix (RDM) and the Manual for Policy Development and Legislation. These ESDF implementation tools have been discussed, translated into Lao and disseminated widely. This manual will assist the MoE to improve the processes for preparing, disseminating and monitoring education policies, laws, decisions, official letters and guidelines and all other regulatory instruments within the MoE. The manual is a live document that is intended to be open to modification reflecting change and improvement in practices in the management of policy development and legislation-drafting within the MoE.

The processes described in this Manual have implications for all parts of the MoE that have a role in developing policies and regulations. In particular it seeks to develop a process that provides a clear, shared statement of policy/regulatory aims, more effective and more efficient drafting of LIs and improved consultation dissemination and monitoring processes to ensure the LIs are valid, understood and having the desired impact on practices.

This manual distinguishes between policy options and policy implementation options (regulatory options). Once the policy options and policy direction are agreed with the leadership (Ministers / cabinet) the second step is to explore options for implementing a given policy through the development of appropriate policy instruments.

As an example for the practical use of the RDM regulatory requirements (policy implementation) for TVET and secondary education extracted from the RDM are listed in Table 3 below:

20092015 Revised Ministerial Decision on curriculum development for TVET and Higher Ed.

Revised curriculum, strengthened teaching, and improved learning with learning outcomes more closely aligned to employment. The curricula have to be developed/ changed in the ‘usual’ way and adopted according to MoE procedures. Skills for curriculum development & definition of minimum standards.

MoE shall have approved the revised curricula for primary

Table 3: Regulatory requirements of the ESDF in the field of TVET (with recommendations of the Regulatory prioritization workshop on March 3rd 2009)

20092015 Ministerial Instruction

(Years 1-5) and lower-secondary education (Years 6-9). GOL shall have approved the revised lower secondary curriculum (Years 6–9). MoE shall have developed a revised upper secondary curriculum (Years 10–12) taking account of the revised curricula for Years 1–9. & MoE shall have approved the use of new LSE textbooks and teachers guides. -> 2009. MoE shall have approved a revised upper secondary curriculum (years10-12). -> 2010

Setting new education and training standards for the vocational training and technical education syllabus including new curricula programs meeting social demand HR: MoE DTVE prepares plans to train 300 new TVET graduate instructors & teachers p.a. by 2012, but a budget needs to be identified

2009 Ministerial Decision

Development of degree level courses for TVET and Higher Education teachers in training. Development of institutional standard, curriculum standard, staff standard.

2011 Ministerial Decision on Education management (TVET and Higher Education)

2.1 Specific input GIR

The current organizational structure of schools should be analyzed. A study could be undertaken by SREAC in cooperation with Dep. of Higher Education.

The GIR Team recommends strengthened institutional and organizational development combined with capacity building that manages the implementation of policies, laws and regulations. At the same time the ESDF work in the field of governance should support the development of management and administrative systems. Capacity building is needed at institutional, organizational and individual levels to allow implementation of the ESDF and necessary institutional reform activities. In developing organizational capacity it is essential to develop the skills and knowledge of MoE. It is necessary to develop and strengthen the fundamental functions necessary for ESDF implementation. Examples of such functions identified by the GIR team include policy development, legislation, quality assurance and HRM. The transformation of ESDF into effective implementation plans is also an important issue for successful ESDF implementation. The GIR Team has proposed an approach to such planning in the field of regulatory drafting to support the ESDF.

The GIR Team proposes approaches and processes that can be used to support organizational and institutional reforms and capacity building. It is important that appropriate processes are selected to accommodate the development needs of the MoE and to ensure that individual capacity building corresponds with organizational and functional requirements, changes and priorities. Capacity building and development should be on an organizational needs basis.

The major recommendation is the strengthening of central strategic management functions through institutional development and capacity building at this level. The TA identified priority areas to strengthen central governance and strategic management. Such functions at central level are legislation, central policy development, and strategic planning processes. The analysis undertaken by the ESDF TA shows that change is required to the structure and

functions of parts of the MoE to ensure a more effective ESDF implementation. Human resource development and capacity building is also a priority.

2.2 Brief summary of the GIR Sector Study

The ESDF GIR sector study includes findings and proposals according to the TOR of the Governance and Institutional Reform TA Team of the ADB TA 4709-Lao. It also proposes a strategy for ESDF implementation in terms of institutional reforms and change management.

The GIR sector study emphasizes the functions of policy development and legislation required for ESDF implementation The ESDF requires more than 50 legislative instruments to be drafted under ESDF. The GIR sector study provides country specific information, an analysis of the capacity of MoE at central, provincial, district, community and school levels to implement the ESDF policies, strategies and targets in relation to governance and management in general, and more specifically the areas of policy development, legislation drafting and improvement of TVET linkages. The study identifies key strategies and relevant priority policy options and goals of the MoE in relation to governance and institutional reforms, proposals for implementation of specific priority strategies in support of ESDF implementation, recommendations for institutional strengthening and capacity development for policy development and legislation function of the MoE. The recommendations are built on an in depth analysis and a systematic consultation and verification process under the guidance of the ESDF GIR Focal Group. The sector study includes a comprehensive analysis of the regulatory framework of the education system of Lao PDR.

When designing and adapting the organizational structure and processes of the MoE and its units at all levels the system should be built in a way that motivates the senior management and staff working in the education administration and management to perform at the highest possible level and to develop themselves continuously to cope successfully with the requirements of ESDF implementation. The study proposes some findings and recommendations for the development of governance and management systems. They are intended to inform institutional and organizational strengthening measures required by the ESDF process.

The study includes 17 recommendations.

2.3 Major Activities of the ESDF GIR Team

In late 2008 the GIR Advisor worked with the Team Leader and other TA team members to revise and re-draft the ESDF to take account of feedback from MoE focal groups and the development partners. The TA team also participated in Education Sector Working Group (ESWG) meetings to provide advice.

The ESDF TA Team undertook a series of workshops and discussions with key stakeholders, including SREAD, SREAC, and representatives from INGOs in 2008 targeting major issues regarding administrative arrangements in the education sector such as deconcentration, village level, experiences with current legislative and regulatory framework, practical experiences with traditions and Lao cultural systems in conjunction with governance and management.

The GIR Team prepared and assisted workshops on:

Prioritization of the regulatory work under ESDF developing a realistic time frame and a principal decision on the procedure and ministerial arrangements for both the drafting work to be done and an ESDF implementation plan based on funding allocations and ODA support; and

Institutional arrangements including possible functions and roles of the newly established Strategy Research and Education Analysis Center, regulatory drafting report outcomes of the HRM Focal Group meeting, recommendations for the processes of policy development and implementation, required capacity development options for drafting functions, and review the draft policy development & legislation drafting manual.

2.4 Observations regarding process and requirements for successful implementation of the ESDF

Major issues arising from the analysis of governance and institutional reform requirements are as follows:

# GIR observations

1 The institutional, organizational and human capacities of the MoE are insufficient for successful ESDF implementation in the time frame envisaged

2 The policy development function of the MoE needs strengthening. Necessary institutional arrangements have been initiated by establishment of SREAC.

3 The legislation function of the MoE needs strengthening for implementation of ESDF in the field of regulatory drafting and legislation.

4 Effective and efficient processes of policy development and legislation need to be established and introduced MoE wide.

Implications for ESDF implementation

Governance and management of the education system should be strengthened continuously in line with CDF and the recommendations of the ESDF GIR Team.

SREAC requires organizational and human resources strengthening and systematic capacity development.

The MoE is advised to establish a strong legislation unit (division) to enable ESDF implementation.

The MoE / responsible units (SREAC/ Legislation) should establish a unified process for policy development and legislation.

The institutional arrangements workshop identified the requirements for SREAC and Legislation. The workshop recommended (1) to promote the research and analysis of Education Policy; (2) to establish a Legislation Division within DOP separating it from the Division of Legislation and HRD; and (3) to follow the priorities of the regulatory drafting matrix until 2015.

Legislation: The workshop acknowledged that legislation worked with different departments but took the view that it should stay with HRD within DOP. The staff of Legislation Division should be 5 persons to fulfill 6 main functions: (1) Analysis of regulation requirements, (2) drafting the regulation, (3) defining the regulation, (4) submitting the regulation to the higher hierarchy, (5) disseminating the regulation and (6) monitoring and evaluating the implementation of regulation.

SREAC should be responsible in conjunction with the legislation division for informing all stakeholders and especially the education management at all levels on education policies, and subsequent regulations and changes through the continuous update of information (MoE website). This should be done in cooperation with STEIC and linked to the EMIS.

2.5 GIR Recommendations and conclusions

Key strategies were identified to achieve the governance and institutional development goals of strengthening education management at all levels, including the school level. These strategies are: (i) Timely development of policies and implementation of regulations required by the ESDF; (ii) strengthening of central management functions through institutional development and capacity building; (iii) Improvement of the governance and management systems towards more flexibility and modern administration in line with national policies and strategies; and (iv) Ensuring of sufficient HRD for ESDF implementation. The GIR Team identified e.g. the following capacity development issues for SREAC and Legislation Division:

 Analytical capacity

 Policy Development capacity

 Juridical and regulatory drafting capacity

 Coordination capacity

 Communication skills

Recommendations – Governance and Management, Institutional Reforms and Capacity Development

Recommendation 1: It is recommended that the MoE considers the gradual development of the education management system towards more flexibility and responsibility (combined with accountability) at local levels e.g. school level.

Issue: Not enough flexibility in the education management system.

Remarks: Underlying this recommendation is that: ESDF, EFA and MDG 2 finally has to be implemented at school level and the support of this level will be decisive for the successful implementation of ESDF;

The introduction of more initiative and flexibility at local levels will require an approach considering cultural needs and traditions and not neglecting the achievements of the system;

PES and DEB initiatives should be supported and incentives provided to recognize achievements.. Annual incentive payments to PES and DEB should reflect success in setting up schools in villages and enrolling students;

The support of political and mass organizations will be needed to encourage and support local participation and initiative;

More flexibility is recommended for decisions on training and upgrading, teacher deployment, management arrangements and budgeting; and Promote sustainable deconcentration through introducing flexible accountable decision making at school level by better selection and up-to-date training of school directors, especially in financial management, inclusive education and school improvement policies, with incentives for meeting defined performance criteria.

Recommendation 2: Effective Governance and Management at all levels needs actual and complete information processed and presented to management and decision makers in the format needed. It is therefore recommended that MoE further develops its EMIS into a comprehensive system of management information supply

Issue: Management information gathering and processing. Up-to-date information is lacking

regarding many management issues.

Remarks: The EMIS should be improved and developed enabling it to provide the management information needed and processed as required.

Recommendation 3: Human Resource Development for education management should be of highest priority. It is recommended that the MoE introduces a comprehensive training and qualification system for education management staff at all levels

Issue: The key functions for ESDF implementation inside the MoE need to be identified and located and subsequently strengthened in a holistic approach involving the institutional and organizational framework as well as human resource requirements; and

Remarks: Policy development (including research and analysis) Legislation and Quality Assurance are some of these key functions.

Recommendation 4: More involvement of village and community

Issue: VEDCs have proved to be a good instrument for encouraging community participation and support for education; and

Remarks: It is recommended that the MoE should assess the impact of its regulations regarding the VEDC regularly and support improvements.

Recommendation 5: Institutional and organizational improvement of Legislation function in MoE

Issue: ESDF requires considerable drafting and legislation work that cannot be realized with current institutional and organizational arrangements.

Remarks: Legislation should be a separate division in the DOP. The Manual for Policy development and Legislation is recommended as a model for a process whereby a single and unified regulatory framework in the MoE can be developed. The draft could be used to introduce a unified process throughout the MoE and all involved departments; and the Policy and Regulatory Drafting Matrix can be used as a tool for ESDF legislation planning and coordination.

Recommendation 6: Governance, management and administration in Lao PDR need clear rules, instructions and encouragement in a vertically organized management structure.

Issue: Organization of the Legislation function in the MoE.

Remarks: The amount of work to be done under ESDF is significant. The legislation function of the MoE must be strengthened significantly. Legislation should be a separate division in the DOP. The function should be detached from the HRD function to underline its significance and fundamental importance for ESDF implementation. The Manual for Policy development and Legislation (attached to this study) is recommended as a model for a process whereby a single and unified regulatory framework in the MoE can be developed. The draft manual has been accepted by the GIR Focal Group and recommended for use by the MoE. The draft could be used to introduce a unified policy making and regulatory drafting process throughout the MoE including all involved departments and units. The Policy and Regulatory Drafting Matrix (attached to this study) is recommended as a tool for ESDF legislation planning and coordination.

Recommendation 7: Institutional reforms and arrangements in Lao PDR need clear hierarchies and structures,

Issue: Traditional management systems.

Remarks: More initiative can be initiated at local levels by the central level through political support for more participation. A successful implementation of ESDF will require the mobilization of all levels of education management and service delivery. Clear hierarchies and with vertical command lines are culturally acceptable and correspond with Lao traditions,

although not excluding some initiative and participation.

Recommendation 8: Required changes, institutional and organizational reforms must be embedded in a comprehensive communication and consultation process involving all affected units, levels and individuals ensuring their harmonization.

Issue: Need for extensive discussion and harmonization for successful change management.

Remarks: The feeling of solidarity and togetherness and good interpersonal relations is important for the work in Lao management teams and hierarchies. A smooth and successful introduction of changes and improvements require a discussion process and achievement of harmonization between all key stakeholders is required for a smooth and successful introduction of changes and improvements.

Recommendation 9: Attention has to be paid to the development and implementation of a comprehensive system of motivation and incentives

Issue: Lack of motivation for more participation and involvement of education administrators at all levels

Remarks: An appropriate system of motivation and incentives is precondition to motivate the MoE education administration staff at all levels.

Recommendations for the improvement of TVET and TVET linkages

Eight additional recommendations focus on improvement in TVET linkages. The improvement of linkages between the different sub sectors and especially with LSE, USE and Higher Education is vital for a successful implementation of the ESDF with regard to the ambitious targets that have been set (see Table 2 ESDF Strategies and targets for TVET in this report).

Recommendation 10: Strategies should be developed and implemented in support of the recognition of study merits in TVET programs on the basis of a study credit transfer system. These should be embedded in the framework of a NQS/NQF.

Recommendation 11: The reforms of TVET should ensure the permeability of the ‘borders’ between the education sub sectors and different schooling streams. TVET should be embedded in a lifelong learning concept with a universal structure of educational levels as for example proposed by the EQF descriptors.

Recommendation 12: A priority in TVET development should be the quality of TVET education. A good quality is a precondition ensuring the attractiveness of TVET education in comparison to academic education.

Remarks: Close cooperation with the Quality Assurance Center of the MoE (QAC) is recommended to ensure modern approaches to QA in TVET.

International experiences and developments in the field of TVET quality assurance should be used to ensure competitiveness and attractiveness of the Lao TVET sector

Recommendation 13: Measures should be identified and implemented in support of a fundamental mind shift towards the recognition of TVET opportunities and the improvement of the image of TVET. This should be embedded in a complex approach to TVET reforms.

Recommendation 14: Integrated workplace-based learning and training into the vocational education curriculum.

Remarks: This varies between TVET programs in Lao PDR. Such approaches could be developed and expanded.

The German development cooperation program is piloting such approaches in Lao using

the positive experiences made in the German dual TVET education system. Initiative from the TVET institutions, local communities and local/regional industries and employers is needed to develop such integrated and dual approaches.

Recommendation 15: Introduction of modern information and learning technologies.

Recommendation 16: It is recommended that the MoE and the responsible department take actively part in the UNESCO UNEVOC network. Active participation and involvement would help to integrate in the ongoing international developments.

Recommendation 17: Career orientation and introduction in the world of labor

Remarks: It is proposed to include a subject of career orientation in general education. Appropriate child orientated topics could be introduced in primary education and increasingly provided in lower and upper secondary education. The introduction of such topics would support ESDF implementation in terms of TVET strengthening and linkages improvement.

3.1 Major activities of HRM consultancy

The International HRM Advisor conducted two missions in the framework of the ADTA 4907Lao. Mission 1 started on November 23rd 2008 and ended on December 23rd 2008. Mission 2 was from January 9th 2009 until April 9th 2009. The National HRM Advisor coordinated his inputs with these two missions. Working on specific TOR for this assignment, addressing aspects highlighted for special study by the Team Leader and further discussed in video conferences with ADB management, the HRM advisory team undertook the following major activities between November 2008 and April 2009:

 Studying ESDF 2009-15 and identifying targets and strategies with HRM implications

 Integrating these HRM-related ESDF targets and strategies into activities for implementation

 Planning and presenting in a workshop with HRM Focal Group and others to prioritize these activities, drawing attention to related governance and financial implications for implementation

 Preparing a report on the above work

 Entering HR implications of above activities in the GIR integrated regulatory drafting framework matrix

 Identifying PASCA, MoE, NUOL, PES and TEI processes for recruiting and selecting teacher education students, including special course students

 Identifying PASCA, MoE, PES, DEB and school processes for recruiting and selecting teachers for teaching positions

 Studying reports on capacity building from ongoing and completed educational development projects and a review of in-service training

 Studying documentation and participating in workshops and meetings on needed CD of PES/DEB administrators identified by CDF project

 Identifying local material conditions of pre-primary, primary and boarding schools along with perceptions of issues in improving access to and quality of education by a 5-day field visit to Luangnamtha province and Sing district

 Learning about management of organizational improvement in MoE through working with newly appointed and serving staff in the newly created SREAC – in association with GIR team and GIR focal group

 Contributing to CB of newly appointed and serving staff in SREAC and other MoE departments by planning workshops on MoE structure for policy-making and HR issues in assisting staff to contribute to it

 Planning and participating in a Joint workshop of GIR and HRM Focal Groups to assist MoE to develop structures for policy and legislation including repositioning HRD functions of DOP

 Drafting a manual (Lao/English) for SREAC and staff in other MoE departments that highlighted HR issues in policy development, legislation and implementation - in association with GIR team

 Planning and participating in a Joint workshop of GIR and HRM Focal Groups to assist SREAC and MoE staff to apply concepts from the manual to HR ESDF-related policy-making issues

 Planning and contributing to a 2-day residential Joint workshop of GIR and HRM Focal Groups on issues in implementing the ESDF proposal for introducing block grants

 Learning about national policy goals for education, interpretation of key HR terms, features of the teacher education system, school quality, costs, relevance of current vocational education and CB efforts of prior and ongoing projects through desk study of policy literature, project reports, research studies, school visits, workshops, internet and by other means.

During the first mission, while ESDF was being finalized the emphasis was upon desk study of ESDF in the context of national priorities for education development. Information relevant for TOR (i) was pursued through meetings with key MoE officials in DOP, DTVE, DTT and DHE, visits to NUOL and TEI and meetings with local PES and DEB staff in their offices. For TOR (ii) relevant reports were accessed and summarized and a report drafted. Draft reports were prepared on the processes of selection for pre-service teacher training and for a teaching position. An inception report was also prepared.

During the second mission an early meeting with PACSA provided information relevant to TOR (iii); information on provincial restructuring was collected during a field visit. Visits were also made to one primary and one secondary school in Vientiane Capital City. To assist ESDF implementation a desk study of its strategies and targets identified 18 integrated activities with HR implications. Validating these activities as accurately reflecting ESDF goals and prioritizing them for implementation were tasks assigned in a workshop on 24 February for members of the HRM Focal Group and others. Legislation and funding constraints were perceived to be obstacles to implementation. HR implications of prioritized legislation were incorporated within a regulatory drafting matrix prepared by GIR team.

The focus of the consultancy shifted in March when, as part of MoE restructuring a Ministerial decree established SREAC in place of a division in DPC. The decree assigned to the newly appointed DG and DD the tasks of identifying functions, structure and staffing. Discussions with key stakeholders within SREAC and in other newly created Centers led to DG DPC supporting proposals for two Joint workshops of the GIR and HRM Focal Groups. The first was on MoE policy making and legislation arrangements, including re-positioning DOP’s HRD unit and HR implications of so doing. The second was on policy making itself. A Manual reflecting GIR and HR issues was prepared to support the first workshop and was a basis for the second. DG DPC authorized a further 2-day Joint workshop in the final week of the international HR consultant’s assignment. It addressed HR issues in implementing the ESDF recommendation that block grants replace registration and tuition fees.

3.2 Field visit to Luangnamtha

HRM team, along with GIR and SDIE advisors made a field visit to Luangnamtha province and Sing District from 9-13 February 2009. A full report of the visit is available. The aims, objectives and purposes of the HRM team participation are provided below.

Aims were to:

 Study the management of teacher supply and demand issues in a Lao province with a high proportion of remote schools with ethnic groups

 Test understandings of perceptions of issues in management of teacher supply and demand developed through literature studies, visits and interviews in the

Vientiane area with those in a contrasting Lao province. Objectives were to enable the HRM consultant to describe:

 Provincial and District Governors’ perceptions of priorities for local teacher supply and demand.

 Processes at provincial and district level for collecting information on teacher vacancies, identifying student quotas for initial teacher training and deployment of MoE allocated quota teachers

 The role of a local PACSA and the HRM reforms and capacity building that it seeks to promote through the local Organizational Improvement Committee

 Perceptions of TEI staff and students on issues affecting teacher training, supply and demand in a province with remote schools and ethnic groups

 Experience and perceptions of school directors, village representatives and selected staff and students about teacher supply and demand, salaries and incentives, including how they solve their staffing problems, and the attractiveness of teaching as a career for school leavers

 Experience of a project providing assistance to schools and teachers in remote ethnic communities.

 Purpose of visits was to:

 See at first hand human and physical conditions of schooling in a province with a high proportion of remote schools for ethnic students

 Meet with key staff at provincial, district, school and village level to obtain information and views about current conditions related to access to, and quality of schooling, and HRM policies in relation to teacher supply and demand that might contribute to improving these conditions

 Meet with school and trainee teacher students to elicit career intentions and obtain perceptions of teaching as a career

 Meet with staff implementing projects to promote access to quality education in remote and ethnic communities

 Collect information on development priorities at local level and how these compare with those of MoE and other central agencies.

Preparation included identifying key informants in different settings and identifying topics and specific questions to explore with them. Because of time constraints it was not possible in the course of the visit to meet with school and teacher training students.

HRM consultants’ conclusions from the visit are structured according to three aspects identified by ESDF:

Equitable access

Key issues relate to access to school for children from ethnic communities, creation of inclusive schools with provision for children with disabilities, and access to teaching posts. With regard to access, the visit provided evidence of recognition of the problem at provincial and district level and use of a range of strategies to reach non-attending children. The scale of the problem is identified and documented by staff from cluster centre schools and PA; VEDC assign local community persons the task of personally making contact with families with non-attending students; voluntary resettlement of communities; nominating and contracting suitable students for teacher training; infrastructure development such as road construction. (Compulsory resettlement, though not mentioned by officials in the course of this visit, is understood to be another way of bringing children into school, though this raises ethical questions). These measures offer some hope that, in time, the issue of access to education for remote ethnic communities will be resolved. Lack of primary teachers was not mentioned as a factor in this province, nor the need for incentives for teachers, except in regard to better accommodation for those who had to board in ethnic villages. However, reasons why out-of-school communities adopt negative attitudes to school education remain unclear, as is the extent to which they support concepts such as ethnic boarding schools.

Research could clarify this issue. It may be that there is scope for provision of a more flexible community based approach to school provision, incorporating local curriculum materials that would prove of interest to leaders of these communities. Teacher training is vital for providing teachers from ethnic and other backgrounds with the skills to work in such settings. Although TTTC/TTS claim to provide a course in teaching Lao as a second language the quality of this course is unknown, as is the extent to which it is suitable as a preparation for teaching Lao as a second language to ethnic groups, as Willsher (2008) pointed out. It is also disappointing to note that the current 8+3 program for ethnic students offered in the local TTS provides no targeted experiences to prepare for work in remote ethnic schools. With regard to children with disabilities visit evidence points to quite limited efforts to identify such students and enroll them in schools. The distinction made in discussion between ‘schools’ and ‘inclusive schools’ reinforces this point. This would seem to be a major access issue in suburban areas. Related issues include access to kindergarten and pre-school education.

With regard to teacher appointments the visit confirmed that the selection process for primary teachers is similar to that in provinces in central Lao viz. an examination set by PES through which many ‘contract’ teachers are preferred to emerging TTC/S graduates. (There are no ‘volunteer’ teachers in the province). The validity of such a process is questionable and a more thoughtful process should be developed.

Quality and relevance

Visits provided little hard evidence on the quality and relevance of education in the province because of the limited number of schools and institutions visited, and the short time spent at each. Such evidence as was obtained points to lack of basic facilities at some schools. However, there is undoubted influence of MoE policy directions and previous projects in such matters as group seating arrangements in classrooms. Classroom walls, too, display visual aids from UNICEF and health education projects that are undoubtedly relevant to awareness-raising of health-related and human rights’ issues.

Governance and management issues

The visit provided new information about the work of provincial PASCA and organizational restructuring involving PES and DEB. One district is participating in PACSA’s national pilot study, but there was insufficient time to explore HRM issues in detail. The visit also clarified provincial and district responsibilities for salary arrangements. It showed that ‘training’ is interpreted in different ways for different kinds of learning, ranging from sharing of experience through meetings to induction by experiential learning for new DEB staff through 6-month assignment to villages to provide expertise. Of interest, too, is the universal use of the ‘quota’ system for selection purposes, with each community being allocated its quota of places for different kinds of personal development and upgrading. The basis on which quotas are decided, and flexibility in their interpretation, remain issues for further investigation.

3.3 Workshop reports

HRM consultants planned and contributed to 4 workshops. The first was with the HRM Focal Group; workshops 2-4 were Joint workshops of HRM and GIR Focal Groups. Brief reports on each workshop are provided below.

Workshop 1: ESDF Priorities for 2009-2010 with HRM/HRD Implications: 24 February

(Annex 1 of HRM Sector Report)

Background: HR consultants summarized and interpreted 43 ESDF strategies and targets with HRM implications as 18 integrated activities. The workshop brought together key MoE staff, teacher educators and administrators, development partner representatives and consultants to review these interpretations, establish priorities for implementation in 20092010, and identify constraints.

Aims were to:

 Introduce ESDF strategies and targets with HRM/D implications

 Provide opportunity for comment and discussion on interpretation of these ESDF strategies and targets as activities

 Rank priorities for action in 2009-2010

 Identify strategies to overcome perceived constraints on achieving priorities, with implications for other ESDF consultants

 Promote understanding of how HRM can harness capacity development to enhance quality of education in Lao.

Objectives were to enable workshop participants to:

 Recognize ESDF strategies and targets with HRM/D implications

 Evaluate interpretations of these strategies and targets as proposed by consultants

 Identify constraints on implementing prioritized ESDF targets and advise on means to overcome them.

Workshop participants (endorsed the 43 ESDF strategies and targets as 18 activities with HRM implications. Sixteen were perceived to require prior governance actions. For none was amount or source of funding identified. Ratings indicated that participants attached highest importance to developing criteria and incentives for head teacher promotion, and establishing an Education Management Training Institute. Other highly rated targets were TVET training and In-Service training for 20% of the teaching workforce annually. The lowest priority was attached to training in school performance monitoring and management for primary and lower secondary heads.

The workshop report included a consolidated list of prioritized activities. It recommended adopting the 18 activities as ESDF targets, prioritizing two identified feasible prioritized activities viz. training TVET instructors and reviewing pay and allowances of teachers for implementation in 2009-2010. HR implications of these activities were identified. It also proposed drawing to the attention of MoE management governance issues that needed to be addressed prior to implementation of other listed activities, with re-prioritization in the light of progress on this and other ESDF targets. HRM implications should also be spelled out in more detail within a time plan. It also proposed that funding sources for implementing HRMrelated activities in 2009-10 be reviewed in the light of proposals in the ‘Costed Sector Development Plan for 2009-10’.

Workshop 2: Joint Workshop of the Focus Groups for Governance and Institutional Reform and Human Resource Management on ‘Prioritization of regulatory documents required by the ESDF’ (ESDF Regulatory Prioritization Workshop) on Wednesday 18 March.

Background: A Ministerial decree of 4 March established SREAC and assigned its newly appointed DG and DD to identify functions, structure and staffing. GIR and HR consultants reviewed with SREAC and GIR and HRM Focal Group members functional options in the wider context of MoE policy making and legislation and HR implications. The workshop brought members of Joint Focus Groups of GIR and HRM together with others from MoE to consider options and make recommendations.

Objectives were to:

 Inform participants about outcomes of prioritization of regulatory drafting required by ESDF, and options for institutional arrangements identified by ESDF GIR and HRM Focal Groups

 Discuss functions and role of newly established SREAC and MoE institutional arrangements for policy development and policy implementation, taking account of outcomes of the HRM Focal Group meeting on 24 February

 Elaborate recommendations for processes of policy development and implementation

 Discuss necessary capacity development options for policy and regulatory drafting functions

 Discuss and evaluate the proposed draft policy development and legislation drafting manual

 Prepare decisions to be made by senior management of MoE and their justification. The workshop was opened by DG DPC who remained in attendance all day. It comprised presentations and discussion groups. Documentation was available in both Lao and English. Recommendations were to promote research and analysis of education policy, including establishing a separate Legislation Division within DOP, withdrawing it from DOP’s Division of Legislation and HRD. The HRM team was asked to include HR implications of legislative priorities in the regulatory drafting matrix up to 2015. DOP’s HRD Division should be integrated with the Education Administrator Training Center.

In summing up, the DG DPC noted the legislative demands of ESDF and the proposal for a separate Division of Legislation within DOP but with additional staffing. He saw a need to continue discussions about the location of HRD and HRM, noting the suggestion of merger with the Center for Training, and promised to take this up with DOP. He also informed that he had asked GIR and HRM international consultants to relate legislative prioritized activities with the 18 prioritized activities from the HRM workshop and to indicate how these related to BESDP policy matrix.

Workshop 3: Joint Workshop of the Focus Groups for Governance and Institutional Reform and Human Resource Management on ‘Supporting SREAC Development for ESDF Implementation’, 1 April

Background: This workshop was planned by GIR and HRM Focal Groups to clarify the concept of policy making, legislation and implementation in MoE with the assistance of a Manual drafted by GIR and HRM consultants. .

Objectives were to:

 Clarify understanding of role of SREAC in policy formulation in MoE

 Introduce draft ‘Manual for Policy Development and Legislation Drafting’ as HR tool

 Try out Manual advice

 Review and develop Manual for Lao context.

The workshop comprised presentations and discussions focused on policy development, implementation and HR implications. DG DPC drew attention to the importance of staff learning how to develop policies and clarifying the function of SREAC. He proposed further development of the Manual by including a glossary of key terms for legislation in Lao e.g.

Prime Ministerial Decrees etc. As ESDF involved significant legislation developing capacities was a major need.

The DD, SREAC referred to research prepared by staff in the former division, including reports on ‘Repetition’ and ‘Education and the Economy’ that were about to be published. He referred to SREAC structure proposed on 18 March; staff of 18 would need more accommodation. The DG, Centre for Quality Assurance introduced the Manual, drawing attention to its draft status. He noted that departments emerging from re-structuring viz. Primary and Pre-Primary and Secondary Education would need to develop policies and strategies through Ministerial decrees and by other means for all aspects of their work, including quality assurance on academic achievement standards. The Manual set out different steps in policy development, but policy options had to be identified at departmental level and strategies for implementation that might, or might not, include legislation. Policy development also needed to take account of conflicting views of stakeholders e.g. re extending schooling to 12 years, or ‘traditional’ and ‘modern’ approaches to teaching mathematics. Consultation was needed. Many regulations that existed for formal education were over 11 years old and consequently outdated and needed review. Since the Education Law stipulates budget for education based on unit costs, DOF has to draft and implement education for the proposed 12 year education program that will impact on all departments. Each department needs an implementation plan that addresses the 3 Ms – Money management, Materials and Manpower! Each department, too, has its own sphere of responsibility: DOP for example has to develop HR for the education sector. MDG involves ensuring all children complete a full primary education by 2015. That goal must be in operational plans if it is to be achieved, with specific programs and activities. Pre-school is very important as children enrolled there perform better in primary school. Lead departments should initiate; SREAC can support.

Examples of Group Tasks

1: Consultation process in policy development

How important is public consultation for policy development in Lao? What is the public consultation process? Are ‘Green’ and ‘White’ papers prepared? Are there alternative documents? How might public consultation be improved in Lao PDR?

2: Policy options

Ethnic communities in Lao PDR sometimes do not provide primary schools for their children. GOL PDR policy is that all primary age children should attend primary school. MoE is responsible for ensuring this.

What policy options are available to MoE to ensure that children in ethnic communities attend primary schools? Which is the group’s preferred policy option, and why?

3: Who are the Stakeholders and should they be consulted?

Imagine that MoE is considering abolishing ‘special’ courses in TEI and universities. (Special courses are fee-paying courses offered to students in the evening and at week-ends).

Who are the stakeholders in this issue? Have stakeholders a right to be consulted on this issue - Why or why not? If you agree that there should be consultation: What consultation should take place? When? Where? How? With whom? What importance should be attached to views of stakeholders in making the policy decision on this issue?

General comment

Presentations at this workshop provided insight into issues confronting re-structured departments. Topics set for discussion are important for ESDF, and most raise important HR issues. Discussions revealed that some participants were highly familiar with strategies proposed in ESDF for addressing national issues e.g. access to school for out-of-school children, while others were quite new e.g. block grants. Comments also revealed that some assumptions of ESDF e.g. that VEDC are in place across Lao PDR may be over-optimistic. Policy development through consultation with stakeholders was generally agreed to be important, but there seemed to be insufficient awareness of the likely range of stakeholders on any of the issues presented, the range of views that might exist on any single issue, or the challenge of developing a process that resulted in legislation acceptable to different stakeholders. With regard to the status of teachers the workshop was informed that a policydeveloped without any apparent consultation - was now awaiting a government decision on implementation! Some concern was expressed at this development.

Recommendations

SREAC should take responsibility for developing the Manual and for introducing it to departments within MoE. The Manual should be developed to incorporate a glossary of key terms used in legislation in Lao PDR, edited to eliminate repetition, developed with examples of policy issues and the likely range of stakeholder views on each, detailed case studies of how policies result in legislation and of how legislation is implemented. The developed Manual should be used by DOP in cooperation with SREAC to induct all new MoE staff. UNICEF might be invited to fund this induction.

Workshop 4: Joint Workshop of the Focus Groups for Governance and Institutional Reform and Human Resource Management on ‘Workshop on Block Grant Implementation’, 7-8 April

Background: The workshop on Block Grant (BG) Implementation was the second specifically to consider implementation of an ESDF strategy.

Aims of the workshop were to:

 Study the ESDF target of block grants and prepare a plan to implement it by 01 September 2010

 Identify key MoE and other stakeholders who can contribute to achieving the target

 List tasks that each stakeholder has to do within that timeframe

 Identify constraints and how these may be overcome

 Prioritize key tasks and indicate resource requirements and other factors for achieving them

 Identify problems that remain to be addressed

 Develop a written implementation plan for meeting the target indicating roles and responsibilities at different levels.

Objectives of the workshop were to enable participants to be able to:

 Explain why the introduction of block grants is important for education development in Lao PDR

 Unpack the proposal for block grants in terms of stakeholders, unstated assumptions, pre-requisites for implementation and other hidden factors

 List different agencies in MoE and at other levels who might be involved in achieving the target and recognize the nature of their contributions

 Develop milestones and other indicators of progress towards achieving the target

 Identify actions required to enable feasibility of plan

 Explain the plan to colleagues.

Summary of views expressed at the Workshop

 BG is important to assist education of very poor children and every effort should be made to ensure that BG money reaches such children

 Department of Finance (DOF) should lead planning for BG, including reviewing existing legislation/regulations and identifying materials e.g. Handbook needed to support implementation

 Clarification is needed on funding source for BG: MOF funds have specific conditions; conditions for use of donor funds e.g. via FTI would depend upon how regulations were drafted e.g. in relation to 1 or 3 year budget cycle as per Vientiane Declaration, carryover of unspent funds etc

 Introducing BG would involve costs of training staff at all levels: funding sources for training need clarification e.g. FTI, donors etc (funds in ESDF to improve management might be used)

 Existing legislation in relation to parental payments to schools should be reviewed

 Experience of BG from donor projects such as EDP2 and BENC, and from neighboring countries such as Cambodia and Thailand may be relevant for implementation

 Government decree should prevent schools asking parents for money for registration and tuition; but wording should allow schools to accept money from Parent Associations

 Decree implementation depends upon Provincial Governors’ support

 Clarification needed on level of decree needed for different legislation – Prime Minister or Minister

 Planning within MoE should start in October for BG delivery to schools in following September

 BG should be transferred to bank account of every complete/incomplete primary school in Lao PDR

 Clarification required on whether BG be allocated to monk (c100) and private schools

 PES and DEB should be informed of BG each school receives

 Amount of BG should be based on unit cost of educating a pupil.

 Current proposed unit cost of USD$ 11 per student would give very small schools little BG income. A weighting x 4 was proposed; alternatively set a minimum BG

 Doubts expressed at proposed unit cost of USD$ 11 per student: what could government afford?

 School director (complete school) or head teacher (incomplete school) should make BG application after consultation with teachers and VEDC

 Application process: school January > District (January) > Province (February) > MoE (March)

 Clarification required on which departments at each level would handle school’s BG application

 Pupil number data not examined e.g. status of ‘repeaters’ as students for BG purposes

 Criteria in ESDF for use of BG funds need clarification: ‘School Improvement Fund’ concept undocumented; School Development Funds exist and explicit criteria for Schools of Quality

 School self-assessment should precede BG application to identify development needs

 Line departments e.g. Primary and pre-Primary should lead on defining criteria for suitable use of BG funds

 Clarify inappropriate use of BG funds e.g. funding staff entertainment

 Three categories of ‘misuse’ of funds proposed: (a) misuse and inappropriate – such as staff entertainment – reimbursement or legal action; (b) misuse but appropriate –such as using money to repair damaged school roof – no penalty; and (c) unspent –where activity would continue into next school year– no penalty, but higher authority must know - this option depends on flexibility allowed by source of funds

 Clarify appropriate uses: many possibilities are ‘pro-poor’ e.g. training/paying teachers to teach remedial classes, providing clothes, scholarships etc

 Grey areas: possible to allocate % of BG funds to support lead cluster school?

 DEB staff should assist school director with BG application and approve

 Clarification required on whether DEB approval is sufficient or should go to higher authorities

 DEB staff should monitor school use of BG funds and report to a higher authority

 Clarification required on nature of DEB reporting and who should receive reports

 No proposals made on how best to pilot BG

 Conflicting understanding of ‘phasing in’ of BG in primary in 2010: (a) all charges to parents removed; (b) only some parental charges removed (e.g. registration fees) and other costs (e.g. tuition fees) removed at a later date

 Guiding statement required on purpose of BG. Possible format: BG is a fund to directly support/develop the school activity and/or support the poor.

The BG can be used for ………… [examples].

The BG cannot be used for’………… [examples].

Concluding Comment

The workshop raised a wide range of issues relevant to implementing BG. It raised awareness of ESDF and promoted MoE cohesion as recommended by CDF and drew attention to a number of relevant considerations including:

 Planning process for BG must include representatives from PES/DEB/Schools/VEDC

 Lead agency in MoE is DOF

 DOF needs to review existing legislation and draft new legislation to enable BG to be introduced

 DOF needs 12-month process for BG applications; with implementation scheduled from 01/10/10 planning should begin immediately

 Funding sources need to be identified for BG planning and training. Source affects flexibility of school deployment. Can FTI funds be used? When will they be received?

 Implementing BG involves several MoE departments and agencies at all levels

 Department of Primary and pre-Primary should draft guiding statement on purposes of BG and propose criteria for evaluating applications from schools

 TA might be considered to support BG implementation and trial CD strategies recommended in CDF report.

3.4 HRM Sector Study Outputs

Writing the HRM sector study was challenging for several reasons. First was the restricted meaning that MoE attaches to HR viz. developing people within or about to enter formal education. Only late in the consultancy and independently of PACSA was reference found to promoting a modern concept of HR as a critical factor in general civil service reform in Lao PDR. Second were challenges compounded by the lack of explicit TOR for ESDF. Third was that ESDF took as ‘given’ a modern view of the meaning of HR but in fact largely conceptualized it in a restricted way as referring principally to teachers, managers and administrators of the functioning education service. Fourth was that ESDF’s proposed strategies and targets were diffuse and needed to be integrated as manageable activities. Fifth was the further challenge of advising on implementation when significant prior policy and legislation development and funding were required and when MoE structures seemed to make the former a major challenge.

The sector study derives from four months of work and draws upon background documentation on the education system and national and socio-economic development policies in Lao PDR in the context of Education For All, interviews with a wide range of staff in concerned government agencies in Vientiane Capital City and in a northern province of Lao PDR, as well as NUOL, TEI and schools that were written up as visit reports, reports of on-going and recently completed educational development projects, research studies, workshops and other sources including internet. Interviews were frequently conducted in Lao language with the national HRM consultant translating questions and answers.

The sector study is structured according to a prescribed format and length in four sections:

1. Country context (including TOR)

2. Situational analysis

3. Challenges and priorities for ESDF implementation

4. Proposed strategies for ESDF implementation.

The final section is Recommendations.

Section 1 reviews TOR and considers HR terminology in the Lao PDR context.

Section 2 is an analysis of the educational situation in Lao PDR that is structured as ESDF in terms of access, quality and relevance and governance and management. Access is discussed in terms of recruitment to and selection for (a) educational opportunities and (b) employment opportunities. Quality and relevance is discussed primarily in relation to primary schooling and teachers. Governance and management is discussed primarily in relation to factors in policy formulation and implementation.

Section 3 is a discussion of challenges and priorities for ESDF implementation. It addresses six goals that are implicit in ESDF viz.

1. Student participation, progress and achievement;

2. Recruitment of best persons who become committed teachers;

3. A committed teaching force with enhanced professional skills;

4. Better managed schools;

5. Better managed education service; and

6. Opportunities for more to progress to and succeed within high quality post-school education.

Section 4 has three sections that in turn (a) describe HRM consultants’ approach to prioritizing ESDF strategies and targets for implementation, (b) provide a macro view of implementation management, and (c) evaluate the potential contribution of a CDF framework for ESDF implementation. Specific strategies for achieving the six goals introduced in Section 3 are then discussed.

3.5 HRM Sector Study Recommendations

HRM sector study makes 20 specific recommendations. The underlying issue for each is identified with remarks.

Recommendation 1: MoE prepares a paper that sets out options, advantages and disadvantages for the teaching profession of a change from civil servant status including implications of making PES their employers.

Issue: Status and conditions of teachers.

Remarks: Government is considering changing the status of teachers from civil servants. No information has been provided on what new status is proposed and how this might affect teachers or teaching. ESDF proposes PES have responsibilities for teacher supply.

Recommendation 2: DTT with support of ESITC and DOP’s HRM Division prepares a profile of the age distribution and qualifications of all teachers, including contract, volunteer and untrained teachers and consider options on introducing an ‘early retirement’ scheme for poorly educated and trained teachers.

Issue: Newly-trained well qualified primary teachers cannot find teaching posts.

Remarks: Many serving teachers in primary and secondary schools are poorly educated and qualified; better educated and qualified teachers cannot find teaching jobs in some provinces. Options for encouraging poorly qualified teachers to leave teaching should be explored.

Recommendation 3: Teachers’ salaries should be increased to 2.5 times GDP by 2015.

Issue: Teachers’ salaries

Remarks: Teachers in Lao PDR are paid on the poverty line. In neighboring countries teachers earn 2.5 times GDP and this salary level should be introduced in Lao PDR.

Recommendation 4: Head teachers who make an incomplete school complete within 3 years should receive rapid incremental advancement on their salary scale, as should teachers in schools that achieve significant outcomes such as meeting criteria for Schools of Quality and reaching excluded children.

Issue: Incentives for head teachers and teachers.

Remarks: Current incentives appear to be ineffective. ESDF proposes that head teachers who achieve significant physical improvement effects in their schools within 3 years should

be rewarded by confirmation of post.

Recommendation 5: MoE DTT is given overall responsibility for managing teacher supply in Lao PDR and uses data collected for (2) above to develop accurate forecasts of teacher supply.

Issue: Supply and demand for teachers.

Remarks: The total number of persons currently teaching in primary school needs to be established to predict future supply needs and manage access to teacher training.

Recommendation 6: DTT should increase the proportion of students admitted to pre-service teacher training by the examination route as soon as scholarship provision is made for poor students in primary and secondary schools as recommended by ESDF.

Issue: Access to pre-service teacher training.

Remarks: Quotas seem to be ineffective for securing quality teacher supply since many quota trained teachers do not apply for teaching posts. Quotas also require trained teachers to teach in their home province, thus restricting their mobility. Selection by examination is an alternative means of accessing a teacher training place.

Recommendation 7: DTT should define 12+3 as the standard for primary teacher training.

Issue: Raising standards of primary teacher training.

Remarks: Depending upon teacher supply projections DTT should channel increasing numbers of primary trainees into 12+3 routes of primary teacher training, while retaining the 8+3 route to a primary teaching qualification for selected groups of trainees, including those from ethnic communities.

Recommendation 8: DTT should collect better data from PES/DEB on teacher shortage in such communities, fund ‘best practice’ ad hoc teacher training courses for students from such communities and monitor subsequent careers of graduates.

Issue: Teacher supply for schools in remote and ethnic communities.

Remarks: It is known that remote and ethnic communities lack teachers, but the scale of the problem is not documented though DEB officers in some districts could provide reliable estimates. Such estimates would indicate how many students from such communities should be trained on special 8+3 teacher training courses. Monitoring of graduates would indicate how many trained teachers return to their communities to teach and persist in teaching.

Recommendation 9: MoE DTT should draft a decree to allow VEDC and communities that lack teachers to recruit students prior to training on a legal contract basis, subject to a right of review by the trainee on graduating.

Issue: Recruitment of teachers for ethnic and remote schools prior to teacher training.

Remarks: Remote and ethnic communities lack teachers. ESDF proposes that VEDC and communities that lack teachers should be allowed to recruit students prior to training on a legal contract basis. Persons signing the contract would be guaranteed a place in a teacher training program. To protect the interests of young persons who are persuaded to sign such a contract a right of review subsequent to obtaining a teaching qualification should be included in the legislation.

Recommendation 10: MoE DTT should commission NUOL FOE to research graduate attitudes to teaching as a career, and consider how actively to recruit teachers for secondary schools.

Issue: Recruitment of secondary teachers.

Remarks: Extension of secondary education to 7 years will increase demand for teachers, especially in shortage subjects. Few graduates, including those ‘bonded’ by the quota currently apply for teaching positions. Research could illuminate why graduates are reluctant to apply for teaching positions.

Recommendation 11: Newly trained quota teachers emerging from training institutions should be guaranteed a teaching position by their ‘home’ province for one year to enable them to complete probation requirements.

Issue: Selection and deployment of trained teachers.

Remarks: Trained teachers leaving TEI require one year of probationary training to achieve full teacher status. Many cannot find jobs and so cannot complete their training. PES nominates students to the quota but teacher appointment policy denies them the opportunity to complete their training.

Recommendation 12: Newly trained non-quota teachers emerging from training institutions should be supported by their ‘home’ province in accessing a teaching position for one year to enable them to complete probation requirements.

Issue: Selection and deployment of trained teachers.

Remarks: Trained teachers leaving TEI require one year of probationary training to achieve full teacher status. Many cannot find jobs and so cannot complete their training. Trainees who enter teacher training by the examination route deserve the opportunity to complete their training.

Recommendation 13: DTT should work with NUOL to develop an accredited program of inservice education and training that DOP should negotiate with PACSA to secure agreement that it counts for salary upgrading.

Issue: In-service education and training

Remarks: Little in-service training is currently provided but a rapid expansion is proposed in the next two years. No structure exists to accredit training. Professional training does not count as ‘upgrading’ for salary purposes.

Recommendation 14: MoE review the effects of current restructuring and consider what further restructuring may be needed to increase the efficiency of its operations.

Issue: MoE restructuring.

Remarks: MoE has undergone significant restructuring in the past year with new departments and centers being created. Review would enable information to be collected about how new departments and centers are managing their work and what workplace support they need. It would also identify where further restructuring is required to improve efficiency of MoE operations in the light of ESDF policy and legislation demands.

Recommendation 15: MoE establish a unit to assist DG in different departments to manage restructuring and new work demands.

Issue: MoE restructuring.

Remarks: MoE restructuring has not been supported by any HR unit, yet there is evidence that a need for such a unit exists to assist on-the-job learning of staff to cope with new and emerging roles.

Recommendation 16: TA should be considered to assist MoE to develop a modern HR function

Issue: A modern HR function in MoE

Remarks: MoE DOP is primarily an administrative unit. To manage policy, system and institutional change implicit in ESDF a modern HRM function able to provide strategic advice and on-the-job training to senior managers and DG is required

Recommendation 17: Each PES establish an HR unit to assist its and related DEB departments to manage the effects of realignment and introduce modern HR practices.

Issue: PES and DEB re-alignment.

Remarks: PASCA is promoting realignment of PES/DEB functions but no modern HR unit is assisting this process at provincial level.

Recommendation 18: NUOL be invited to consider introducing academic study of HRM/D and workplace learning in Lao PDR.

Issue: Introduction of modern thinking about HRD.

Remarks: MoE is the agency responsible for HRD in Lao PDR. Government has asked DPC to advise on modern conceptions of HRD. There is no academic study of HRD in Lao PDR. Introducing such study at NUOL could create a supply of persons trained in modern HR thinking.

Recommendation 19: MoE prepare a paper setting out issues in replacing registration and tuition fees in primary and secondary schools and introducing block grants and a timetable for doing so.

Issue: Access to primary schooling.

Remarks: Registration and tuition fees discourage parents from enrolling children in primary school and keeping them there. ESDF proposes block grants to replace fees. Block grants will be based on a per capita rate that may means that some schools lose income. These and other issues need to be addressed in the proposed paper.

Recommendation 20: Development partner project design should introduce and train in modern HR learning strategies.

Issue: Design of development partner projects.

Remarks: Development partners play an important role in HRD in Lao PDR. Their projects often could incorporate a wider range of ‘best practice’ off- and on-the-job learning strategies. Projects should be designed to do so.

4.1 Key Activities and Findings of the Social Development and Inclusive Education TA Team

The International SDIE Advisor conducted two missions under the ADTA 4907-Laos contract. Mission 1 started on 22nd October 2008 and ended on 11th December 2008. Mission 2 was from 14th January 2009 until 26th March 2009. The National SDIE Advisor coordinated her inputs with these two missions. Working on the specific TOR’s for this assignment the SDIE advisory team undertook the following major activities between October 2008 and March 2009:

 Identification of key strategies of the gender, ethnic and pro-poor policies of GoL including policy options for mainstreaming the IE at provincial, district and school levels;

 Identification of mechanisms for mainstreaming of best-practice approaches including emerging areas of need such HIV/AIDs education;

 Identification of lessons learned for introduction of ECE to poor villages;

 Analysis of the SCN exit strategy for inclusive education;

 Identification of support structures required at different levels to implement a nationwide support for inclusive education;

 Review of DNFE activities and identification of how new and existing non-formal approaches might be used to achieve primary schooling for the 10% of children who currently have no access to any school due to severe remoteness;

 Work with CEWED to identify priorities for policy implementation for social development and inclusive education; and

 Review drafts of the ESDF to ensure that priority policy actions and strategies identified are pro-poor and aimed at increasing access of girls and women, ethnic people and other disadvantaged groups in an equitable manner.

During the first month the main focus was on advisory support to the Team Leader and the DPC ESDF Project Director, contributing to the finalization of the expanded ESDF. The draft ESDF was comprehensively reviewed and amended by the SDIE advisor to incorporate the comments and corrections provided by the MoE focal groups and department heads, INGOs and DPs.

A document review was undertaken as the first step in information gathering for the Sector Study. This exercise revealed that the process of developing a National IE policy, strategy and action plan for Lao PDR was already well under way with a Gender Mainstreaming Policy and Action Plan for education included in the National Strategy for the Advancement of Women (NSAW). The policy and strategy plans for inclusive education targeted to ethnic groups, disabled children and children from poor families was less advanced but there was already a clear commitment by the GoL and MoE written into the Education Law, the National Education Sector Reform Strategy and the EFA NPA. This commitment was raised with the establishment of a Centre for Enhancement of Women, Ethnic and Disabled People. CEWED in April 20081. A report, prepared by the CEWED for presentation by the Vice Minister at the 48th International Conference on Education in Geneva in November 2008,

1 The name of the centre was changed in May 2009 to Inclusive Education Centre (IEC)

provided a comprehensive overview of the status of IE in Lao PDR and the challenges which still remain. The Focal Group chaired by the Director of CEWED had formulated a concept paper for the ESDF which also clearly outlined the current status of IE in Lao PDR and the priorities for the short and medium term. The Concept Paper is reproduced in the IE Sector Study, Annex 3. The CEWED Annual Plan 2009-2010 included activities aligned to the ESDF which were realistic and achievable given the capacity and resources available to CEWED. It was also acknowledged by the MoE that line departments throughout the education system have to also incorporate IE activities into their plans. To this end all the workshops and key meetings held during the TA period were attended by representatives from each MoE department and representatives from mass organizations. Also the PES Directors were invited to attend a two day participatory policy planning meeting focused on Inclusive Education, funded by UNESCO.

Despite the commitment and efforts of the MoE, CEWED, provincial, district and school officers, there is a continuing lack of funding and a lack of capacity to undertake all the IE activities needed in the short and medium term to achieve timely implementation of the ESDF. More detail is given in the FTI Appraisal Report including analysis of the existing funding gap.

The SDIE TA team consulted widely with the line departments in the MoE and with INGOs and DPs working on IE on policy, strategies and implementation plans. Within the MoE information was gathered in discussion with the key officers in DPPE, Pre-School Division, DNFE and DSE. As the primary focus in the TA TOR was on analysis of issues in relation to inclusion of learners for completion of primary education there was less emphasis given to inclusion at TVET and HE though this was acknowledged within the context of the ESDF. Specific topics were explored in more depth including:

 Completion of incomplete schools;

 The expansion of multi-grade teaching;

 Expansion of the Schools of Quality concept to apply to all schools including project and non-project schools;

 Sustainability of project and non-project MoE interventions for inclusive education;

 Lao language learning for children whose second language is Lao;

 Mechanisms for implementing school block grant and scholarship schemes as incentives to enable children from some disadvantaged groups to attend school;

 The present lack of information on children with disabilities and the capacity gap which exists in terms of technical and professional expertise in education provision for children with disabilities; and

 Models for NFE classes to reach urban and rural out of school children.

Each of these topics is discussed in the IE Sector Study.

The TA team participated in regular ESWG meetings both to inform DPs of the progress with ESDF and Sector Study drafting and to receive comment and feedback from DPs. The TA team also attended meetings of the ESDF Steering Committee in November and December 2008. Interim meetings of the ESDF Secretariat were attended by focal group members and the TA Team Leader. The SDIE consultant was requested by the ESDF PD, as an additional task, to provide models for implementation of the 5+4+3 education reform strategy, linked to the work undertaken by the consultant in the development of the ESDF for General Education (April 2008). The models were presented by the ESDF PD for discussion in a

meeting of ESDF Focal Chairs and provided the basis for a decision to be reached on timing and phasing of the expansion of education.

One Informal ESWG meeting was convened for the GIR and the SDIE team to meet the INGO representatives working in the education sector. This meeting was a useful opportunity for review of the ESDF in terms of implications for implementation. The INGOs have a particular perspective on this fundamental issue as much of their work is focused at the level of practical implementation of MoE policy and strategies at district, village and school levels. The issues of mainstreaming, exit strategies, lessons learned, scaling up and replication of best practice were relevant topics for discussion. Other topics included the efficient use of limited resources including the possibility of establishing a register of trained trainers and a central resource base of training materials. The participants were requested to provide information on current and pipeline projects focused on IE and the information received, though not comprehensive in coverage, is included in the IE Sector Study as indicative of the range and scope of initiatives. Coordination of these activities is a challenge for the MoE to ensure that inputs are targeted to priority areas, are consistent with MoE and GoL policy, can be monitored and evaluated, and achieve quality impact. This raises a further point which was discussed in subsequent consultations - some DPs and INGOs are in favor of a coordinated and consistent approach to IE through for example the scaling up of Schools of Quality while other DPs and INGOs prefer to encourage diversity in project scope and impact.

Inclusive Education TA Team Field Visit to Luangnamtha

A field visit to Luangnamtha was organized by the ADB TA team in February 2009 and a comprehensive TA Team report was completed. The field visit provided the opportunity for fact finding and verification of information for each technical area. In the case of IE the TA team outlined the following Aims, Objectives and Purpose for the visit.

ADB TA Team Field Visit to Luangnamtha, 9th-13th February 2009

Aims of visit for the Social Development and Inclusive Education Team

To identify strategies for the inclusion of girls, children from ethnic groups, disabled children and children from poor families in Basic Education.

To analyze the involvement of projects and NGOs in provision of Inclusive Education (girls, ethnic groups, disabled and poor) including ECE for poor children in ethnic village communities and NFE provision for re-entry and Primary Education equivalency programs

Objectives of visit

To meet representatives from Provincial, District, Village and school levels to discuss issues for achievement of Basic Education for all children (girls, ethnic groups, disabled and poor)

Purpose of visit

To provide information to assist in the development of possible interventions and associated capacity needs for inclusion in the ESDF Implementation Plan.

Main discussion points and data needed from the visit:

PES/DEB: Inclusion issues; gender, ethnic, disabled, poor; Multigrade teaching,

Provision of ECE and NFE for completion of Basic Education

BENC Operation of scholarship and school block grants

NFE: Re-entry; equivalency programs for completion of Basic Education

TTC: Training courses for:

ECE (school readiness for 5 yr olds)

HIV/AIDs awareness

Inclusion of disabled children in the mainstream classroom

Training for teachers from ethnic groups

Strategies for teaching Lao language to ethnic group children

Multi-grade teacher training

Schools Functioning of the school feeding program – child health issues

Multi-grade teaching in incomplete school

Scholarships and school block grants

ECE for 5 year olds from poor ethnic villages / Lao language learning

Enrolment of girls, disabled children, poor children

Teaching Lao language to ethnic children

The SDIE TA Team met with the Provincial and District Governor, the PES and DEB directors, the director and teachers at an ethnic boarding school, the school director, teachers and children at a village primary school, the leader and representatives of a VEDC, the school director and teachers at a cluster school and a multi-grade satellite school, a teacher education institution, the officers from the provincial NFE department, the school director and teachers from an urban pre-school and the officers at an EU funded education project. The cluster school was participating in the UNICEF funded Schools of Quality project including a resource centre.

Field Visit to Luangnamtha : Conclusions of the SDIE TA Team

The issues raised provide an overview of the challenges to the achievement of inclusive education and thereby the achievement of universal primary education for all children. There are numerous examples of positive interventions and activities that have been implemented in the past through development projects. The projects provide technical assistance and funding for capacity building at all levels in the province, district, village and school. The main issue is one of sustainability. There is a need to identify sustainable solutions outside projects for example strategies for the community level to help themselves. There is also a need for development partners to consider the sustainability of projects and to collaborate far more with other providers to ensure that much higher levels of sustainability are achieved, with detailed and well-timed exit strategies and consideration of capacity development needs.

The provincial and district education services should work with the VEDCs to identify further opportunities for improving the provision of services to fit the local contexts of the children and the community. For example the development of local curriculum content and use of local language, timing of classes and location of classes.

There is no reliable information available on children with disabilities and very little valid data on children who are out of school. Disaggregated data and school mapping is needed from schools and VEDCs to ensure that DEB’s and PES’s are able to improve their planning to improve the equity in access to basic education of the hardest to reach communities and most disadvantaged children. This process has started through IE project activities and

needs to be scaled up in parallel with capacity building of local staff in data collection and analysis.

The various education projects that have been implemented in Luangnamtha in the recent past provide numerous examples of good practice and capacity building that can be mainstreamed, replicated and scaled up

The EU BENC project provides a model of school improvement planning (SIP) in collaboration with PAs and VEDCs tied in to disbursement of annual school block grants. This initiative, taken in conjunction with the UNICEF Child Friendly Schools, School SelfAssessment cycle and the concept of Schools of Quality could be used as the basis for developing the policy guidelines and modalities for implementation of the ESDF school block grant initiative. Three key lessons learned are (a) the challenge of training the VEDCs to manage the SIP and School Block Grants as 70% are illiterate, (b) to provide sufficient time for training and development of SIPs before disbursement of school block grants and (c) the process of channeling funds through to school level when remote communities have no access to a bank.

Examples of project resources which have been developed and could be mainstreamed: the LABEP project developed useful guidelines for teaching children who are non-Lao speakers and guidelines for multi-grade teaching. TEAC / NUOL have also developed a new ethnic group teacher training curriculum including teaching of Lao language.

There is a cadre of teachers, DEB and PES officers who have been trained in key areas of pedagogy and school management and who provide a significant resource that could be utilized in future. For example there are 8 education officers and TTS staff who have been trained as IE trainers, officers who have been trained to train NFE teachers, TTS staff who have been trained in action research methodology, VEDC members trained in school improvement planning and school directors trained in school management. The DEBs and PES’ should see this as a capacity development resource that can be utilized to meet future professional development needs.

The role of the VEDC is central to the achievement of Inclusive Education, reaching all unreached children and ensuring that there are funds available to provide schools of quality, channeled through the District Governors office. Policy guidelines and strengthening of the VEDC committee members through capacity development training will be needed for the management of school improvement plans and school block grants.

School Block Grants need to be linked to the criteria for development of Schools of Quality concept so that School Improvement Plans and the process of School Self Assessment address pedagogical quality improvement in addition to improvement in the school environment.

Capacity development can be provided through the organization of local study tours within the district

Inclusive Education Workshops

Two workshops were organized by the SDIE TA team. The IE Advisors participated as facilitators and presenters in two other IE workshops.

The first IE workshop at Thalat in December 2008 was organized by CEWED and funded by UNICEF. The workshop was attended by the national SDIE Advisor. The workshop provided

the opportunity for participants from MoE departments and mass organizations to begin the process of developing policy and strategy for gender, ethnic groups and disabled children under the mandate of CEWED. The Vice Minster for Education attended the meeting demonstrating high profile of IE in the education reform plans. The outputs from this meeting were used as a starting point for further development of the IE goals, policy and strategy in the first workshop organized by the SDIE TA team.

The first formal IE workshop organized by the SDIE TA team was held in February 2009 at the invitation of CEWED and the IE Focal Chair. The purpose of the workshop was to develop the immediate, medium term and long term priority actions for SD and IE as components of the ESDF Implementation Plan. The objectives for the workshop were (i) to review the SD and IE goals, policy and strategies, (ii) to develop the immediate, medium term and long term priority actions for SD and& IE, and (iii) to give the opportunity for technical team participation in starting to develop the ESDF Implementation Plan for SD and IE. The participants reviewed a framework of goals, policies and strategies for seven elements of inclusive education - gender, ethnic groups, children with disabilities, children from poor families, ECE for five year olds, NFE for primary education completion and child health. The first three elements are the responsibility of CEWED. The fourth element, children from poor families is a priority aspect of the pro-poor focus in the ESDF. The last three elements are included as topics of focus in the TA TOR. The participants worked in groups, each group taking one of the seven elements. Their tasks were first to review the framework that had been formulated by the TA team from analysis of all existing policies and aligned to the ESDF strategies. The second task was to revise and elaborate on any of the goals, policies and strategies in the framework. The groups worked directly onto computers in Lao language which streamlined the plenary session and the collation of the work from each group.. The outcomes from each group are presented in Annex 1 of the Sector Study as a key output of the TA. Annex 1 provides a summary of the agreed Goals, Policy Areas, Strategies and Proposed Actions for ESDF Year 1, 2009-2010. The agreed goals and policy areas are presented in Table 4 below.

Table 4: IE Goals and Policy Outcomes from IE Workshop, 6th February 2009 Goals Policy

1. Gender To achieve gender parity in Basic Education enrolment, promotion and completion

To improve gender parity in enrolment into Upper Secondary Schools and Vocational Education institutions

All girls and boys are able to complete Basic Education.

Equal opportunity for all women and men on completion of Basic Education to enroll in Upper Secondary School and Vocational Education

NSAW Target I : To expand girls’ school attendance at all levels with gradual equality with male (according to the targets of strategy laid down by the MoE)

2. Ethnic Groups To achieve parity in enrolment, promotion and completion of Basic Education for children from all ethnic groups

To enable ethnic students

Provide complete schools to the remote areas through Village Education Development Committee. Expand cluster school networks for professional support

Strengthen multi-grade teaching in small

Goals Policy

to learn in Lao language and to preserve their ethnic culture.

3. Disabled Children To provide learning opportunity for all children appropriate to their individual abilities

4. Children from Poor Families

5. ECE for 5 year olds in rural villages

To achieve parity in school indicators between poor and less poor districts

To enhance the learning opportunity of 5 year old children in poor villages.

6. NFE To achieve completion of Basic Education for all children, targeting out-ofschool children

schools

Expand ethnic education through local curriculum

Education Policy for the rural areas

Education Policy for Cross Border communities

Lao language learning provision and preservation of local ethnic language and culture

Provision in the education system for all children with special needs

Reduction in direct and indirect cost barriers for poor families

Increased enrolment in ECE of 5 year old children from remote rural areas

Enrolment in the education system of all children of school age

Re-entry of out-of-school primary age children

Equivalency programs for out- of-school overage children

7. Child Health Improved health status of all children

Inclusion of life skills education to enhance the practical knowledge and competence of all children

Improvement to the Physical and Psychosocial Environment of the School Integration of Health and Nutrition Services into Schools

HIV/AIDS awareness raising among vulnerable groups

A two day Inclusive Education workshop was organized by CEWED in February 2009 with funding from UNESCO. Participants were invited from all MoE departments, mass organizations, key DPs and INGOs. The meeting was chaired by UNESCO and the Vice Minister of Education. The purpose of the workshop was to provide a briefing to participants on the concept of Inclusive Education and to then engage them in a review of the IE goals, policy and strategies from earlier workshops. The SDIE TA team was invited by CEWED to assist in facilitating the working sessions. The SDIE TA team also made a presentation on IE in the ESDF document and the implications for implementation of the proposed strategies. The outcomes from this workshop were compiled for wider dissemination and consultation.

The second and final IE workshop organized by the SDIE TA team was held in March with the purpose of supporting CEWED and other MoE and mass organization representatives to

begin the process of writing the National Inclusive Education Policy. The meeting was opened and closed by the Vice Minister for Education and was chaired by the Director, DPPE. The workshop provided the first opportunity for the officers of CEWED and MoE to develop their skills in policy writing in preparation for the drafting of the National Inclusive Education Policy (NIEP).

The workshop objectives were:

 To clarify the differences between GOAL, POLICY, OBJECTIVE and STRATEGY;

 To practice drafting GOAL, POLICY, OBJECTIVE and STRATEGY statements for NIEP; and

 To clarify the structure of the NIEP by giving the opportunity for all key departments and other offices to participate in development of the initial drafting of content for the NIEP

The SDIE TA team gave a presentation on the theoretical aspects of policy drafting (Annex 5) and drew on several existing education policy documents as possible templates from which to structure the National Inclusive Education Strategy. A template had been prepared, developed from the structure of the National Holistic Early Childhood Policy currently being drafted with support from UNICEF. The template offers examples relevant to inclusive education. The template was translated into Lao and added to the Manual for Policy Development and Legislation drafted by the GIR and HRM TA teams. The manual has been handed over to the MoE’s SREAC. The workshop participants used the template and other policy document structures to consider the content required for the National Inclusive Education Policy document. Some initial drafting of content was also started during the limited time available. As this was the last workshop of the TA team the outcome of the workshop was handed over to CEWED to take forward.

Three major challenges for implementation of the ESDF SDIE strategies can be identified:

 The challenge of implementation of the ESDF policy and strategies for IE at all levels in the education system;

 The challenge of achieving a wider understanding of equity issues in relation to inclusive education and the rights of all children to be able to access quality education; and

 The challenge of reaching the hardest to reach where there is not one single, simple solution and where there is a complexity of disadvantage among learners. For example one child may be disadvantaged as a disabled girl from an ethnic poor family and another child may be a boy with learning disabilities whose family is not very poor or from a family of a poor, ethnic group.

A problem faced by the MoE at present is that the EMIS data is not sufficiently disaggregated. Also definitions are inadequate for consistency in identification of poor or disabled children. For example the categories of disability are not properly defined and the means of reliable diagnosis is not in place at village and district levels. In addition, at present the system lacks the capacity at all levels to be able to implement the IE policy and strategies contained in the ESDF and in the existing MoE policy and plans.

4.2 Social Development and Inclusive Education Outputs

The specific outputs of the Social Development and Inclusive Education TA have been developed through wide consultation led by CEWED and the ESDF Focal Group, with participation of key MoE departments, mass organizations, bilateral and multilateral development partners and INGOs. The key outputs are:

 A Social Development and Inclusive Education Sector Study;

 Inclusive Education goals, policy and strategies;

 Annual Plan 2009/2010 for Inclusive Education; and

 Draft National Inclusive Education Policy

Each of these outputs is summarized in the following sections.

The Social Development and Inclusive Education Sector Study

The SD and IE Sector Study draws on the following key documents:

 EFA National Plan of Action (MoE 2007);

 National Education System Reform Strategy (draft) 2006-2015 (MoE 2007);

 Education for All Mid-Decade Assessment (MoE 2007)

 Education Law (draft - revised) Decree No 149/PDR (MoE 2007)

 Mid Term Review of the Implementation of the Sixth National Socio-Economic Development Plan (2006-10) (draft). (MoPI 2008)

 The Development of Education, National Report: Lao PDR (48th ICE, Geneva Nov 2008). (MoE 2008)

In addition, the relevant policy and strategy documents for gender, ethnic and disabled education have been reviewed and information has been sought from the respective development partners working in social development and inclusive education.

The Social Development and Inclusive Education Sector Study provides analysis of the capacity of MoE at central, provincial, district, community and school levels to implement the ESDF. The study identifies:

 Key strategies and relevant priority policy options;

 Mechanisms for mainstreaming of best practices;

 Requirements for a nationwide support structure for inclusive education;

 New and existing approaches to NFE for children who have no access to school due to severe remoteness; and

 Priorities for policy implementation - ensuring that priority policy actions are pro-poor and aimed at increasing access of girls and women, ethnic people, and other children with special needs including disabled children and out-of school children.

The SD and IE Sector Study presents a comprehensive overview of the range of Inclusive Education issues and concerns highlighted in the EDSF. The study focuses in particular on gender, ethnic groups, disabled and people living in poverty as the four main aspects of vulnerability and disadvantage in relation to education access, participation, progress and achievement. The study provides an analysis of current inclusive education policy, strategies and actions of the Ministry of Education, Lao PDR and the planned and on-going interventions of development partners. An evaluation is made of the capacity of the MoE to implement the strategies and targets of the ESDF specifically in relation to reaching the 10

percent of children of primary school age who are as yet unreached, and consequently to the achievement of Education for All (EFA) and Universal Primary Education (UPE).

The content of the Sector Study is summarized in Table 5.

Table 5. Content of the Social Development and Inclusive Education Sector Study

1. COUNTRY CONTEXT

2. SITUATIONAL ANALYSIS: INCLUSIVE EDUCATION STRATEGIES IN LAO PDR

2.1. Gender Education Strategies in Lao PDR

2.2. Ethnic Group Education Strategies in Lao PDR

2.2.1. Language Policy

2.2.2. School Readiness for 5 year olds

2.2.3. Ethnic Boarding Schools

2.3. Education Strategies for Children with Disabilities in Lao PDR

2.3.1. The Rights of Children with Disabilities

2.3.2. EMIS Data for Children with Disabilities

2.4. Pro-Poor Education Strategies in Lao PDR

2.4.1. School Block Grants

2.4.2. Scholarships

2.5. Analysis of Existing Non-formal Education Practices and Provision for Achievement of UPE for Remote Communities

3. CHALLENGES AND PRIORITIES FOR ESDF IMPLEMENTATION

3.1. Inclusive Education Terminology and Definitions

3.2. Development of National Policy for Inclusive Education

3.3. Mainstreaming of Inclusive Education Policies, Strategies and Interventions

3.4. Capacity Implications for the Implementation of Inclusive Education Strategies

3.5. Disaggregated Data for Prioritization of Inclusive Education Actions

3.6. Sustainability of Inclusive Education Interventions through Scaling Up and Replication of Best Practice

3.7. Barriers to Enrolment, Progression and Completion of Basic Education

3.7.1. Impact of Child Health on learning achievement – Nutrition and HIV/AIDs Awareness

3.7.2. Education Access for Children from Remote Communities

3.7.3. Education Access for Children with Disabilities

3.7.4. Education Access for Children from Urban and Rural Poor Families

3.8. Priority Actions for Inclusive Education

4. PROPOSED STRATEGIES FOR ESDF IMPLEMENTATION

4.1. National Structure for Inclusive Education

4.2. Reducing Cost Barriers to Education: School Block Grants and Scholarships

4.3. Recommended Strategies for Remote Community Access to Basic Education

4.3.1. Strategy for Completion of Incomplete Schools

4.3.2. Strategy for Training of Teachers for Remote Areas

4.4. Identification of New Approaches to NFE for Completion of Primary Education in Remote Areas

4.4.1. Strengthening the Capacity of the VEDC

4.4.2. Mobile Teachers for Remote Areas

4.4.3. Impact Evaluation of Primary Completion Equivalency Classes

4.5. Introduction of ECE to Poor Villages

4.5.1. Access to ECE for Rural Villages

4.5.2. Quality and Relevance: Strategic Options for ECE in Rural Villages

4.5.3. Governance and Accountability: Strategic Options for ECE in Rural Villages

4.6. Strategies for Scaling up and Replicating Best Practice

4.7. Examples of Lessons Learned from Education Projects in Lao PDR

4.7.1. Scholarships EDF Scholarships Project

4.7.2. Targeted Grants EU BENC Project

4.7.3. School Feeding Programs and Nutrition Education WFP

4.7.4. Inclusive Education (IE) Project SCN /SIDA

4.7.5. Development of School Assessment Tool incorporating an Index of Inclusion SCN

4.7.6. Schools of Quality (SoQ) Indicators UNICEF

4.7.7. Strengthening Community and School Support for Children with Disabilities in Lao PDR (SCSS) CRS

4.8. Proposed Strategies by Sub-Sector

5. RECOMMENDATIONS FOR ESDF IMPLEMENTATION

6. DOCUMENTS REFERENCED

Annex 1 Inclusive Education Goals, Policies and Strategies 2009 – 2010

Annex 2 Definitions and Glossary of Terms relating to Inclusive Education

Annex 3 ESDF Inclusive Education Focal Group Recommendations and Scenarios

Annex 4 Responsibilities of the MoE towards Inclusive Education as formulated in National Policy statements

Annex 5 Selected Project Descriptions

IE Definitions

The definition of Inclusive Education used in this Sector Study and recognized in the education policy in Lao PDR is drawn from the UNESCO Salamanca Statement and Framework for Action (1994) and the most recent recommendations from the 48th International Conference on Inclusive Education (UNESCO Geneva, 2008). The current definition (see box below), places emphasis on ensuring that all people have access to quality education.

Inclusive education is an ongoing process aimed at offering quality education for all while respecting diversity and the different needs and abilities, characteristics and learning expectations of the students and communities, eliminating all forms of discrimination. Social inequity and poverty levels are priorities to be addressed, as these are major obstacles to the implementation of inclusive education policies and strategies. These problems should be addressed within a framework of inter-sectoral policies.

School cultures and environments should be promoted that are child-friendly, conducive to effective learning and inclusive of all children, healthy and protective, gender-responsive, and encourage the active role and the participation of the learners themselves, their families and their communities.

Recommendations from the 48th ICE, UNESCO (Nov 2008)

In the process of drafting of the ESDF, the DPs in their comments and feedback emphasized a need to clarify the terminology which is commonly used in relation to issues of Social Development and Inclusive Education. There is a tendency for some terminology to be used too loosely or to be misused. A lack of clarification can lead to misunderstanding or to incorrect assumptions and conclusions. Definitions and a glossary of terms are included in the IE Sector Study Annex 2, taken mainly from official documents of Lao PDR, the core reference point being the Education Law. Consultation with INGOs has also sought to clarify terminology used in relation to social development and inclusive education. Other references are sourced from UNESCO and all definitions are verified with reference to their source. The list of definitions and glossary of terms is not fully comprehensive and there is therefore scope to build up a more complete listing, including information from the health sector on definitions of disability. The TA team engaged in preparation of the initial ESDF for General Education provided as one of their outputs a Lao-English Glossary of Terms for the education sector which has proved a valuable resource in the preparation of the expanded ESDF. It is proposed that the two documents – IE definitions and glossary of terms, and ESDF General Education Lao-English glossary of terms – could be merged, or at least retained by MoE as a working reference document.

Performance Indicators for Inclusive Education

In the Sector Study a range of key performance indicators were presented covering all aspects of IE. A concluding summary of the brief analysis of Inclusive Education indicators raised the critical point that there are multiple factors to be taken into consideration in addressing the needs of the most disadvantaged groups of learners who are as yet unable to access quality education or who have been unable to complete basic education. Several initial conclusions were drawn in relation to the capacity requirement of the MoE to implement the inclusive education strategies of the ESDF:

Of the 10 percent as yet unreached children of school age there are some identifiable concentrations of children who are educationally disadvantaged particularly those living in the poorest, remote districts of some ethnic groups. Other unreached children are more widely dispersed and are more difficult to accurately locate.

Improvement in the scope and validity of disaggregated data collection will provide the potential to strengthen the planning process and to target resources more efficiently. For example, there is limited information available on disabled children from which to develop targeted support. Disaggregated data which is available may be better utilized by planners and decision makers at school, community, district, province and central levels for needs analysis, resource allocation and impact analysis.

The disaggregated data indicates disparities in enrolment rates, dropout rates, repetition rates, and transition rates to secondary and tertiary education between districts. The reasons for the disparities need to be analyzed by school principals, district and provincial administrators and education officers and community leaders with a focus on the most vulnerable groups of students. The analysis has to focus on understanding of the school and home life experiences of children and their parents.

The performance indicators reveal the diversity in the range of challenges to be addressed. This in turn indicates some possible solutions and the need to identify priority actions which

can be applied differently from one community to another according to community-based needs assessment.

Inclusive Education Goals, Policy and Strategies

As described above, the outcome of the IE workshop held in February 2009 was a revision to the draft framework of goals, policies and strategies for inclusive education. The framework was initially drafted by the SDIE TA team to integrate the IE policy and strategies from the ESDF concept paper with the policy and strategy plans of MoE described in the Lao PDR report to the 48th ICE in November 2008 and the CEWED strategic plan. The Lao language version of the draft framework was thoroughly reviewed by participants from MoE departments and mass organization in the February workshop, and was again reviewed by participants from all PES’ and TEI’s in a later February workshop. The framework is presented in the Sector Study Annex 1 and has been handed over to CEWED in both Lao and English versions.

Annual Plan 2009/2010 for Inclusive Education

The ESDF TA team were tasked to support the Team Leader in preparation of the annual costed sector plan for education, as a document linked and aligned to the approved ESDF and with the purpose of satisfying the requirements of the FTI process of ESDF appraisal and the PRSO requirement as a trigger for release of the next tranche of funding to Lao PDR. The SDIE TA team undertook a review of the ESDF strategies and priority actions in parallel with preparation of the IE framework of goals, policies and strategies, ensuring alignment between the two documents. The task also included consultation with CEWED to ensure the annual costed sector plan reflected the planned activities of CEWED. Similarly, consultations with the MoE departments were also held to try to ensure that the priority actions for IE in the ESDF were reflected in each department. Communication and working relationships between the MoE departments help to facilitate this synergy between the mandate, policies and strategies defined by CEWED and the process of implementation of the priority actions through the MoE departments who subsequently ensure that the priority actions are implemented at each level in the system through to school level. As mentioned earlier, the main constraints to implementation are current lack of funding and lack of capacity at each level. These issues are taken up in the analysis of funding gap produced as part of the FTI Appraisal Report February 2009, and in the development of a performance appraisal framework and capacity development framework currently under development.

Draft National Inclusive Education Policy

The final output of the IE TA team was the provision of skills development and capacity building opportunity for members of CEWED, and officers from key departments of MoE and mass organizations. The workshop engaged the participants in some exercises through which to gain an understanding of the structure and component parts of the national inclusive education policy document. The workshop enabled the participants to start the process of policy drafting. As the workshop was organized at the end of the consultancy period the draft document was handed over to the CEWED team to take forward. In May 2009 the first Draft IE Policy was completed by CEWED and MoE staff. Lao and English versions were circulated to key stakeholders for comment.

4.3 SDIE Sector Study - Recommendations

The recommendations for ESDF implementation for Social Development and Inclusive Education are presented below in response to specific issues identified in the sector study.

Recommendation 1: Establish agreed national definitions and terminology for Inclusive Education in Lao and English and establish IEC approaches to promote a shared understanding of the concept that no child should be excluded from the opportunity to learn and to raise awareness that, as stated in the law, all children have the right to education.

Issue: Limited understanding of the concept of Inclusive Education at each level and department in the education system and among parents and community representatives.

Remarks: Stereotypes exist through which misconceptions are held. For example in some communities education is considered of more value to boys than to girls, and confusion exists between disability and the ability to learn. There is also a tendency to associate Inclusive Education with provision of services for children with disabilities rather than applying to all children.

Recommendation 2: Develop a comprehensive EMIS system which gathers disaggregated information from VEDCs and schools on key indicators for:

gender parity in basic, secondary and tertiary education enrolment, promotion and completion;

parity in enrolment, promotion and completion of basic education for children from all ethnic groups and qualitative indicators of provision for Lao language learning for second language Lao speakers;

enrolment of disabled children in mainstream schools and special schools;, and breakdown of total population of disabled children by disability categorization2; parity in school attendance and performance between poor and non-poor populations.

Issue: Lack of disaggregated data about school children and out-of-school children from disadvantaged groups.

Remarks: Some models of disaggregated data collection and data analysis exist at local levels through PES, DEB, VEDC, school and project databases including information on children in school and out of school. More systematic data collection and analysis is needed. Information is also needed from mass organizations and villages without VEDC or school.

Recommendation 3.: Improve the coordination of development initiatives for Inclusive Education to ensure:

- maximum efficiency in resource allocation and utilization; and

- standardization in approaches aligned to national strategies and plans.

Issue: Multiple donor initiatives including small and larger scale interventions for Inclusive Education with variations in geographical spread, target groups, inputs and outputs which would benefit from improvement in the management and coordination.

Remarks: Project and program design needs to build in factors for sustainability from startup, in addition to design of exit strategies for scaling up and mainstreaming of successful practices.

Core teams of trainers and teaching-learning materials developed though one intervention should be made available to others through, for example, a register of accredited trainers and a resource bank of training and teaching materials. Models for provision of scholarships and school block grants are functioning through project

2 In collaboration with MoH management information system

support at local levels. These models may be developed for wider implementation in relation to inclusion of children from poor families and provision of access for children with disabilities.

Recommendation 4: Address Inclusive Education interventions within a framework of compatible and complementary inter-sectoral policies and strategies

Issue: Policies are developed relevant to the priorities and responsibilities of each Ministry. Increased inter-sectoral consultation may be required to ensure that policy statements for Inclusive Education are checked for compatibility with parallel statements of other Ministries and organizations.

Remarks: Policies and strategies are evolving and expanding. The inter-connections need to be mapped. A central resource base of education policies and strategies could be established with cross-referencing to other sectoral policies and strategies.

Recommendation 5: School Improvement Planning should be promoted as the means for schools to manage change for improved quality and relevance of teaching and learning

Issue: Quality improvement is needed in teaching and learning.

Remarks: Schools of Quality (SOQ) provide the model which other schools can apply, according to their local context and their own priorities, using school self-assessment tools and with support from the VEDC and parents.

Schools of Quality provide strategies for the achievement of Inclusive Education. This should be understood as provision of opportunity for all children to enroll, progress and complete basic education of quality – girls and boys, children from ethnic groups, children from poor families and children with disabilities.

School Improvement Planning can be linked into decentralized school block grant procedures including processes of application, selection, fund management and monitoring of impact.

Recommendation 6: Enhance the status of ethnic boarding schools by applying the standards and characteristics of Schools of Quality, in particular: improve living conditions for students and teachers; provide strategy guidelines and training for teachers to enable them to work in multi-lingual classrooms; and strengthen links with the student’s family and home community; improve the transition from ethnic boarding schools to further education and work opportunities; and ensure the safety and welfare of all children and teachers.

Issue: The standard of facilities and learning achievement in ethnic boarding schools needs to be improved

Remarks: Ethnic boarding schools bring children together from diverse communities and ethnic groups even within one district. It is difficult to establish a sense of community. Children may be isolated and more vulnerable than in their home environment. A review of the ethnic boarding school policy may identify other alternative strategies such as mobile teachers and satellite school campuses.

Recommendation 7: Develop the capacity of the system to implement and manage the proposed pro-poor strategies: Develop a sustainable mechanism with regulations, guidelines and defined responsibilities for the equitable implementation of school block grants aligned to school improvement plans, scholarships and in-kind supplements for schools in poorer districts and for children from

poor families; and

Develop parallel mechanisms for implementation of scholarships and school block grants to support Inclusive Education for girls, ethnic groups, disabled children and children from poor families.

Issue: Cost barriers exclude children of poorer families from school enrolment, progression and completion. Poorer districts are also those with fewer qualified teachers, more incomplete schools and poorer student performance indicators.

Remarks: Elimination of school registration and enrolment fees is the key ESDF strategy to reduce cost barriers for children from poor families. National policy is required to support the implementation of this strategy. School block grants aligned to school improvement plans are planned to offset school fees. An expanded scholarships program is also proposed to counter the opportunity cost factor for children from poor families.

Models for provision of scholarships and school block grants are functioning through project support at local levels. These models may be developed for wider implementation linked to school improvement planning

Recommendation 8: Support teaching and learning of Lao as a second language: Policy guidelines, teaching methodology and curriculum materials are needed to support teachers who are working in classes and in schools with young ethnic students learning Lao as a second language; and

Provision of school readiness programs in rural / ethnic communities to introduce 5 year old second language Lao speakers to Lao language.

Issue: Not speaking Lao is associated with low pupil achievement (ASLO 2007). Measures are needed for Lao language learning for children from second language Lao speaking ethnic groups including capacity of teachers to teach in the 2nd language Lao classroom and the impact of this on student learning outcomes.

Remarks: Lao language learning strategies for second language Lao learners should also incorporate strategies to ensure that ethnic culture and values are preserved.

Recommendation 9: Expansion of access for children with disabilities: establish a system for disaggregated data collection from schools, VEDCs and villages where there is no school;

CEWED capacity development plan to mainstream Inclusive Education project activities; Develop a plan for capacity development training of specialist teachers of disabled children; review of pre-service and in-service teacher training curriculum for Inclusive Education including provision for children with moderate disabilities in the mainstream classroom; system to register teachers and staff in province/district who have received Inclusive Education training; and child seeking strategies to be employed by PES/DEB staff when visiting schools.

Issue: There is a lack of information on disabled children in school and out of school without which it is difficult to plan for provision of appropriate education access.

Remarks: A medium term strategy and action plan is needed, based on accurate data of number, category and location of children with disabilities. CEWED plans to undertake a needs analysis survey included in the 2009/2010 annual costed plan.

5.1 Objective of the assignment as per the Terms of Reference: The assignment TOR state the following specific tasks;

 Development of a Performance Assessment Framework to support the implementation of ESDF, including MoE and Development Partner performance.

 Formulation of a Capacity Development Plan drawing on the Capacity Development Framework and focusing on capacity development requirements for ESDF Year 1, 2009-2010.

 Formulation of an indicative draft Institutional Sector Reform Plan to meet the future requirements of ESDF implementation within the Ministry of Education, PES, DEB, VEDC and schools

5.2 Progress on the TOR

The TOR have been produced in two documents; A Performance Assessment Framework, and an ESDF Preparation Program. These documents accompany this report.

The Performance Assessment Framework – outline of content

Section Title

Purpose/content

1,2 Purpose, Principles A short description of the purpose and principles underlying the PAF

3 Assessment focus of the PAF

A brief description of the categories of assessment questions that the PAF answers with regard to the ESDF content and the ESDF as a process.

4 Operational Framework Describes, in sub-sections, Implementation, Reporting, Government Sector Assessment processes, Responsibilities for sector assessment, Instruments for performance assessment.

5 Instruments Contains the instruments to be used for performance assessment.

TABLE A: Policy Action Matrix (PAM)

TABLE B: M&E Matrix

TABLE C: Reporting Matrix: Key Planning & Report documents

TABLE D: Performance Assessment Framework Annual Process chart

TABLE E: Systems & Capacity Building for Sector Performance Assessment

TABLE F: Development partner ESDF alignment matrix

TABLE G: Core Indicator Reporting Matrix to be maintained for the PAF

Appendices Annex (1) PRSO (2008-2010) triggers relevant to the education sectors, Annex (2) List of ESDF policies and strategies

The ESDF Preparation Plan – outline of content

Section Title

Purpose/content

1 Introduction Gives a summary of the main points of the plan, sets out the context of ESDF development, and describes the assumptions which underlie the plan.

2 Preparation Plan context Describes the purpose and gives an overview of the plan itself

3 Content Describes the selection, prioritization and grouping of key policies, and strategies. Then it goes through the Stage One Activities is diagram form, and outlines the Stage Two Activities. Implementation Modalities and costs are covered, along with an important note on program participation.

Appendices ANNEX 1 List of ESDF Pillars, Policies and Strategies

ANNEX 2 Selected ESDF policy and strategy groups

ANNEX 3 Stage One Activity Matrix

ANNEX 4 Projected Technical Assistance Support needs

ANNEX 5 Cost Norms for ESDF preparation program costs

ANNEX 6 ESDF Coordination Structure

ANNEX 7 Policy/strategy Breakdown Template

ANNEX 8 Quality Assurance implementation planning for ESDF preparation

Additional outcomes

The outcomes of the mission go beyond the production of the two documents. It has strengthened additional outcomes of the ESDF TA team – i.e.

 the ESDF has been translated into a relatively coherent standardized list of policies, and policy actions to achieve the policies. This structure is now the basis for shaping the ESDF for action plans, monitoring, and preparation.

 there is now a greater understanding in government of some of the issues relating to implementation and monitoring, a focus on how to fit the ESDF into the emerging mix of possible funding, and how to implement some of the key policies.

 the greater understanding appears to have confirmed the interest that most departments have in implementing their own work plans alongside projects.

In general, the MOE leaders and units have made the transition from ESDF theory into the emerging implementation realities and have some necessary instruments for shaping the ESDF into a plan of action. Should a practical and government-led process of developing an FTI proposal begin shortly, the momentum generated by this mission, and the products developed, will benefit that process.

5.3 Activities during the period

The main activities during the mission have been the following.

 Reading the necessary background and key documents.

 Discussions with the most departments of the MOE, including leaders and key technical staff on both performance assessment, M&E, and ESDF preparations.

 Discussions and meetings with World Bank Capacity Development Framework Team.

 Discussions with other donor representatives.

 Preparation of a presentation on the ESDF transitional phase at the ESDF status workshop.

 Attendance at workshops relating to ESDF Legislation and HRD, ADB TA outcomes, and a UNESCO workshop on the CAP EFA UNESCO program.

 Conversion of the ESDF into a standardized matrix of policies and subordinate strategies to form the basis of all future action documents including the PAF, and ESDF PP.

 Finalization of a draft Performance Assessment Framework document.

 Preparation of ESDF Preparation Plan information capture instruments.

 Finalization of an ESDF Preparation Plan document.

 Submission and discussion of successive drafts of the documents to the DG DPC, Head of the Inspection department, selected government experts, and the ESDF TL for comments and feedback.

 Preparation with the DG DPC, DDG DPC, and Head of the UNESCO office of presentation and task material for workshops

 Workshop with Focal Group heads to outline the PAF and ESDF PP.

 Workshop with the leaders of all MOE departments on aspects of the PAF and ESDF PP.

5.4 Implementation of the TOR Evolution of the ESDF-related environment during the mission

In March 2009, the ESDF and the MOE were still in ESDF development mode. The ADB ESDF TA was adding details, depth and recommendations to aspects of it, the Focal Groups were still structured as in the development stage, FTI accession occurred at the very beginning of the mission, and the ESDF was still seen as a device for attracting funds and a means of securing an increase in the government education budget. The environment was characterized by limited knowledge of the ESDF in the MOE and provinces, uncertainly over how it could be implemented, ‘alternative futures’ (CDF, FTI, continued projects) expressed by some donors, and pause with regard to ESDF coordination and management as the development phase merged into a transition to implementation requiring a different focal group structure or, alternatively, an embedding of ESDF into government unit TOR. On the donor and consultant side, it was widely recognized that both the ESDF content, process, and document itself were not perfect due to development time constraints, though it contains many essential policies that the government needs to implement.

The counterbalance to these problems, on the government side, was a much clearer awareness of a higher level framework for education. In spite of the issues above, the ESDF had succeeded in creating a sense of relationship between policy and action, something that the MOE recognizes needs strengthening for the future. This, more, than anything else, has been its achievement. There is now the basis for a coherent policy dialogue around a set of defined policies covering the sector, and a set of costed targets.

To some extent, the problems were inevitable for a period of transition from development to preparation-for-implementation, and the fact that a framework of policies and policy actions was now mandated for shaping the future represented a significant step forward.

During the 3 months of the mission, some significant changes have occurred.

While considering implementation issues, there appears to be an emerging recognition that, in the medium term, the ESDF may need additional clarification and detail relating to implementation issues. Analysis of implementation requirements before preparation are likely to point to specific aspects needing modification, and the process of matching resourcing to policy actions will further focus on what is feasible in the Lao context and in what order it needs to be achieved.

The continued openly expressed government support for the ESDF has obliged more donors to take it into account.

The rapidly emerging demands for FTI preparation and government planning deadlines, has accelerated the transition in government thinking and awareness from ESDF development to ESDF implementation. There is a clearer idea of what it means to implement and what the implications are. The PAF and preparation plans have contributed to a clearer idea of what implementation looks like by converting the ESDF into an implementable framework of policies and policy actions, with a structure of outcomes, indicators and associated analysis, assigned responsibilities, and a matching program to prepare government leaders and units to understand what is needed and take on responsibility for implementation. It appears that much of the mission work on the policy/strategy framework is being used in the government work on constructing an FTI program. This will permit some application of the PAF and even ESDF PP if the FTI is not ‘projectile’.

Whether this translates into practical actions to fund ESDF implementation through a revised Sector Operational Plan remains to be seen. A logical step for the government would be to incorporate all funding and activities within a rolling 3- or 5-year rolling policy/strategy-based Sector Operational plan which is itself a sub-set of prioritized ESDF policy actions and which incorporates the Education 5-year plan.

Implementation of the PAF TOR

At the beginning of the mission, it was understood that a SWAP-orientated program, such as ESDF, required a performance assessment framework and process which would enable stakeholders to measure progress on policies and policy action/strategy outcomes for accountability, strategic direction and continued funding purposes. The consultant’s understanding was that this framework would have to satisfy the relatively rigorous, and more performance related requirements of development partner monitoring procedures. The lack of a policy monitoring or performance assessment capacity on the Lao government side is something that has to be addressed by ESDF implementation itself.

The basic assumption for orientation performance assessment framework is that there is, or will shortly be, a defined program of action to implement policies – one based on the achievement of policy milestones not in order to measure activities, but to establish policy milestones year-on-year. This program of action would have to have a transitional set of processes with significant TA and donor involvement in the form of joint missions and collaborative analysis, on the basis of a shared approach to ESDF implementation and monitoring.

The PAF was designed accordingly, modeled partly on UK DFID/AusAID components, with some general budget support elements and Lao-specific needs built in.

To build the basic framework, it was necessary first to convert the ESDF into a standardized list of policies and strategies on which a framework of outcomes relating to policy actions and

strategies could be constructed along with indicators, framework for analysis and units responsible.

Because of the nature of the ESDF document, this was not a simple task. The organization of the ESDF document makes it difficult to establish a definitive solution for classifying the policies and strategies. The structure in the PAF represents the best choice of interpretation. It is assumed that the real meaning of some policy actions will be clarified during implementation preparation, and this is partly why the opening stage of the ESDF PP provides the opportunity for government implementing units to make their own analyses and why the plan provides an analysis breakdown template for this purpose.

The PAF was largely drafted by mid-mission but parts of it required government units to complete. A number of factors impeded this;

 Division of responsibilities for various aspects of sector monitoring which does not yet clarify how coordination or the outcomes of sector reporting are to be achieved.

 The lack of a defined program to assess. The government was unable to set policy action milestones since there was no program to develop milestones for.

While ‘sector monitoring’ is a function assigned to the Department of Inspection Management (DOIM), the elements of ‘performance assessment’ and policy level monitoring are new to Lao PDR3 and their relationship with ‘sector monitoring’ is unclear. A World Bank-funded project has been assisting the DOPM in developing a set of processes for inspection, and this is also described as ‘sector monitoring’ in the documentation produced by the project. However, in practice, it is largely directed at school inspection and management issues, and appears to depend upon a challenging level of investment to ensure meaningful annual coverage. Because of this orientation, it was evident that there was risk of confusion if a more comprehensive set of responsibilities relating to higher level outcomes of sector monitoring was pressed on the Inspection department4. At the same time, because of the allocation of responsibility to the DOPM, it was difficult to discuss aspects of sector monitoring relating to standards, learning assessment, and policy monitoring, assigned respectively to the Education Standards and Quality Assurance Centre (ESQAC), the Research Institute of Educational Sciences (RIES), and the Strategy Research and Education Analysis Centre (SREAC) respectively, under the term ‘sector monitoring’. Furthermore, the ESQAC itself identified a need for further clarification with regard to assignment of responsibilities for learning assessment, while the SREAC has only recently been established and is still trying to establish the role and processes in policy monitoring in the sector. Meetings were held with these units, but it was concluded that the issue of the concept of sector monitoring, the processes involved, and the assignment of responsibilities were areas that needed to be included in the ESDF Preparation Plan. A session on the first day of the final workshop was given to a presentation and discussion of the problem. During the final briefing, the DG DPC flagged the issue as something he would like to resolve as soon as possible.

During the process of PAF the structure and content was outlined early in the mission in a presentation at a workshop covering the outcomes of the other ESDF TA, and successive

3 Declared by Vice Minister Ly Thu at the ESDF preparation workshop in Thalad.

4 Though four meetings were held with the DG DOPM and the EDP2 consultants, the department itself was engaged heavily with the project throughout April, May and June.

versions were sent to the DG DPC and ESDF TA colleagues. At a meeting with the DG DPC on April 9th, the text and major instruments were discussed and the DG expressed interest and general approval of the structure and text. Later versions of the PAF were also given to the DG DOPM. At the final workshop on ESDF preparation, the structure and major instruments (the Policy Action Matrix and Monitoring and Evaluation Matrix) were illustrated and explained, and an exercise on developing policy milestones for the future program conducted.

The PAF has been written to cover the full range of ESDF policies and strategies. However, it is likely that further prioritization of ESDF policies will take place as a result of implementation sequencing and available resourcing. With regard to the PAF, this implementation prioritization simply requires a corresponding selection of performance measures and policy actions related to the policies under implementation. The ESDF is a broad front of sector policies all of which have 2015 targets (or earlier) and so the PAF also serves as an tool to assess what has not been implemented.

Implementation of the ESDF PP TOR

The ESDF preparation plan is designed to prepare government units for implementing the ESDF. The reasons such a plan was considered necessary are;

 government units need to be prepared for the substantial and relatively rapid increase in activities and resource management that ESDF implementation will bring.

 the ESDF policies and strategies need to be better known and their implications fully understood, adapted to local circumstances and sequenced before implementation can begin.

 government managers need to be prepared to lead their own responsibilities for ESDF implementation in the sector. This not only includes being able to explain the ESDF to others, but also to assist in building the capacity of implementing units involved in their areas of responsibility.

 government systems of resource management, monitoring, and reporting will need to perform well early in the ESDF implementation process. Weaknesses in these processes need to be addressed early.

Without good preparation, there is a risk that implementation bottlenecks will impede progress. This is the problem the ESDF preparation plan aims to forestall.

The ESDF PP process began with a study of the ESDF, an examination of the departmental capacity building stated needs in their sector operational plan submission, and follow-up meetings with departments/centers of Pre-Primary and Primary, Non-formal education, Technical and Vocational, Personnel Management, Inspection Management, Planning and Cooperation, Standards and Quality Assurance, and Strategy Research and Education Analysis. Several meetings with the World Bank Capacity Development Framework team were held and the CDF materials acquired for study. A summary matrix which matched the CDF recommendations with existing or imminent actions was drawn up and presented to the DG DPC so it was clear what was already covered.

The early approach to the TOR assumed that the departments were well aware of the ESDF contents, and would be ready to state their perceived needs for capacity building and, to a lesser extent, for organizational changes. As described above, knowledge of the ESDF was not adequate for this. Departments had few ideas relating to preparing for ESDF.

In addition, it became evident that the government program of organizational restructuring, already complete in the MOE and moving onto the PES and DEB levels, had not been directed specifically at ESDF needs, although, in some respects it did strengthen ESDF implementation (e.g. separation of Secondary and the formation of CEWED). As a consequence, major organizational changes following so soon on this government reorganization would be more difficult to propose. On the other hand, organizational adjustments, or internal departmental changes, and process changes were possible and necessary for ESDF implementation.

These had not been mapped out, and could not be until more details as to the nature and timing of ESDF implementation were known. For this reason, the plan has incorporated issues relating to organization as outcomes of analysis by government managers and leaders of implementation requirements of ESDF policy actions. However, organizational changes of this nature are always related to revised unit TOR and to changes in business processes, of which the ESDF will require many. Process change is a combination of capacity building and inter-unit communications relating to a task to be performed.

Because of the inter-relation between process change, capacity building and organizational adjustment, it became sensible to integrate these into a single ESDF Preparation Plan combining capacity building and organizational issues. This would also permit easier sequencing, and be more readily presentable to government.

Consequently, the two TOR have been expressed in one integrated plan.

Several departments (DPO, ESQAC, DOEI) were asked to produce their ideas of a preparation plan in a template given to them. However, it became evident that this exercise was raising expectations which had an uncertain future, particularly for non-basic education units. From the results submitted, it was evident also that unit-based work plans were hard to relate to strategy implementation by one department on its own. Much of ESDF policy implementation requires cooperative actions to achieve a outcome and this is hard to express in a unit-based plan without developing the strategy implementation plan first. The ESDF PP is designed to bring units together to develop strategy implementation plans and then distil their own unit responsibilities from the strategy plan.

The ESDF PP also provides an opportunity, in specific activities, for MOE units to incorporate sector study finding from the ESDF TA and also the recommendations of the World Bank funded CDF into their strategy implementation and capacity development plans.

The ESDF PP was presented on day two of the final workshop, and was followed by an exercise in developing a preparation plan for implementation of five policies/policy actions relating to the areas of responsibility of each participant. The workshop confirmed in many ways the need for such a program.

The ESDF PP is partly costed and this is given in the plan appendices. An additional spreadsheet breaks the costs down and allows for some costing scenarios based upon workshop location, and components. The total cost in the plan covers stage one of the plan (preparation for leading agencies and follow-up programs relating to that preparation) and includes national TA costs. International TA costs have not been computed, though the number of person-months is given, because some of these costs may be covered under various means of support.

The ESDF PP assumes that a full program will actually follow. If not, there is little point in doing it. If a limited ESDF program, or even a different program is implemented, then most of the preparation program content will still be well targeted and should be done. The ESDF PP is, at its most basic, focused on re-orientating and re-equipping government managers to implement under government systems and funding.

5.5 MOE de-briefing

The final de-briefing meeting with the DG DPC and DDG DPC relating to the ESDF PP and PAF raised a number of issues relating to the future. As the government is beginning to confront the issue of how the ESDF relates to the imminent picture of funding and government capacity, questions were raised about the relationship between the PAF and ESDF PP, and the immediate tasks of the MOE in Q3 of 2009 – viz. the FTI application package, and the government Education Sector 5-year Plan.

It was explained that both the PAF and ESDF PP were directed at supporting the implementation of a government strategic and operational program run largely through government processes under government management. The next step for government would be to convert the present activity-based 09/10 sector operational plan into a rolling (3 or 5 year) policy-based Sector Operational Plan under a sub-set of prioritized ESDF policy actions, incorporating FTI funding along with all other sources, and showing clearly how progress is going to be made on the ESDF policies. This, in effect, would also be the basis for the next national Education 5-year plan. This was the scenario understood at the beginning of the mission.

When the rolling strategic and operational plan was done, the ESDF PAF and ESDF PP would be focused specifically on the selection of policies and policy actions in the plan. They have been designed flexibly for this purpose. The deadline for the FTI and national Education 5-year plan is September or October, 2009, and so it was appropriate, if funding was available, to run the ESDF PP and do the PAF focusing exercise, starting in Q4 of 2009 and running up to June 2010 for some activities. An expected outcome of the ESDF PP is also the development of the foundations for the 2010/11 Sector Operational Plan (SOP) as well as a revised sector monitoring system for government. Additional expected external support from the EC and BESDP would cover some aspects of the preparation plan, although the quality and relevance of this support would need to be checked.

However, it was stated that the MOE would organize the FTI program under three specific FTI ‘components’ and the question raised as to how the ESDF PP would relate to that. The answer to this question lies in the relationship of these ‘components’ to the ESDF itself, whether they would be run in parallel with the government SOP or form part of it, and how an FTI program would relate to government processes. This was not clarified in the meeting.

In short, it was explained that the road ahead following an ESDF-based SOP/5-year plan route is clear and the PAF and ESDF PP have an essential role to play in this. Under a ‘component’-based FTI, the role of the instruments is less clear.

The DG DPC was specifically interested in the issue of the organization of a sector monitoring system in government. Though the mission looked at this issue in some depth in relation to the PAF, it was explained that it had not been the task of the mission to facilitate the development of the sector-monitoring system itself. That was written into the ESDF PP

which devotes a significant set of activities to this outcome. It has also been understood that the forthcoming EC TA might support this area.

5.6 Future directions relating to the TOR

Most of the follow-up needs relating to the TOR are captured in the ESDF Preparation Plan itself. During the course of the mission, particular needs of the MOE have emerged relating to the need to sort out issues relating to sector monitoring processes, and, in particular, how policy monitoring can be done. There is an interconnected set of actions here, all of which are covered in the ESDF Preparation Plan.

The most effective follow-up, therefore, is to implement the preparation plan itself. This can only be done when the resourcing, content and timing of the actual program itself are known. The ESDF Preparation Plan itself needs funding. Though cost scenarios are given in the plan, in practice, some donors may have a sum of flexible resourcing available, and the government can decide how it can implement the program within a given budget ceiling.

Annex 1 Terms of Reference for the ADB TA Team

ADTA 4907-Lao: Sector Wide Education Sector Development Framework

- Expanded ESDF, October 2008 – June 2009

National Financial Advisor (3 person months)

(i) In conjunction with the National ESDF Coordinator, facilitate access of the International Financial and Performance Planning Advisor to relevant staff in MOE, MOF and other relevant government organisations and projects;

(ii) Assist the International Financial and Performance Planning Advisor to obtain relevant information from MOE, MOF and other ministries and projects; and

(iii) Provide support to the International Financial and Performance Planning Advisor where required and assist the ESDF Coordinator to prepare appropriate briefing papers for NEFAC and DPC

International Governance and Institutional Reform Advisor (4 person months)

(i) In conjunction with the National ESDF Coordinator, assist MOE to develop a process whereby a single and unified legal and regulatory framework, incorporating individual decrees and taking into account the Budget Law of 2006 can be developed. Within this framework, identify a policy to include greater functional involvement of Lao stakeholders from outside the sector in overall strategic development of the sector;

(ii) In conjunction with the National ESDF Coordinator and DOP, develop options for harmonising tradition cultural systems (loyalty, patronage, fiscal self reliance) with modern government and management, across and within the different levels. Identify required change management strategies to support a transition process;

(iii) Outline capacity building requirements for Division of Policy Analysis, particularly for analytical work required for ESDF - Part 2, and identify how best to ensure that work of Division has an impact on policy development across the sector;

(iv) Explore options for improvement to linkages between Upper Secondary, TVET and higher education and potential need for basic skills training at earlier levels. The existing Master Plan for TVET will be the starting point for this work. The role of the private sector should also be included. These options should focus on developing flexible linkages between the sector and changing demands of the labour market. Identify impact on primary education of a policy for widespread introduction of preprimary education. Identify new areas for inclusion into the sector due to changing social demands, such as HIV/Aids education; and

(v) Provide advice to the International ESDF Strategy, Program and Appraisal Specialist and International Financial and Performance Planning Advisor to enable identification of cost implications of suggested reforms.

National Governance and Institutional Reform Advisor (3 person months)

(i) Assist the International Governance and Institutional Reform Advisor to review the current legal and regulatory situation;

(ii) Provide advice to the International Governance and Institutional Reform Advisor regarding Lao traditional cultural systems of governance and assist in identifying appropriate change management strategies; and

(iii) Assist the International Governance and Institutional Reform Advisor to review linkages within sub-sectors and the overall links of the sector to social and labour market demands.

International Human Resource Management Advisor (4 person months)

(i) Review the efficiency of TEIs and HEIs, including the MOE funded scholarship system. Given the very high unit cost of TEIs, pay particular attention to the impact of special courses on teacher education programs. Together with the International Governance and Institutional Reform Advisor, identify the extent to which the current expansion of HE institutions and courses delivered are consistent with projected labour market demands;

(ii) Review previous institutional capacity building activities and identify reasons behind the limited impact so far achieved. Identify the extent to which training opportunities have been efficiently used and applied to future duties;

(iii) In consultation with CSOI and the cross-agency secretariat under the chair of PACSA, assist the MOE Organisational Improvement Committee (OIC) to develop policies to improve the impact of capacity building, including succession planning for senior managers. Advice should also be sought from Provincial OIC based in the Governor's office. The policy should give priority for women and ethnic people to access training opportunities; and

(iv) Provide advice to the International ESDF Strategy, Program and Appraisal Specialist and International Financial and Performance Planning Advisor to enable identification of cost implications of suggested reforms.

National Human Resource Management Advisor (2 person months)

(i) In conjunction with the National ESDF Coordinator, facilitate access of the International Human Resource Management Advisor to relevant staff in MOE, CSOI and PACSA;

(ii) Assist the International Human Resource Management Advisor to review necessary data to review efficiencies of TEIs and HEIs, including detailed data on scholarships; and

(iii) Assist the International Human Resource Management Advisor to review necessary data to review previous capacity building activities, outcomes, and evaluations.

International Social Development and Inclusive Education Advisor (4 person months)

(i) In conjunction with CPWEG, DNFE and LaoNCAW, identify key strategies of the gender, ethnic and pro-poor policies of Government, the social development assessment findings of the ADTA and other project policies in order to elaborate and provide relevant priority policy options to the International ESDF Strategy, Program and Appraisal Specialist. This should include policy options for mainstreaming the policies of CPWEG at provincial, district and school levels;

(ii) Analyse the involvement of NGOs across the whole sector and identify mechanisms for mainstreaming of best-practice approaches, including traditional sector activities and emerging areas of need such HIV/AIDs education, to the development of women, poor and disadvantaged groups. Identify lessons learned for introduction of ECCE to poor villages;

(iii) Undertake an analysis of the SCN exit strategy for inclusive education and identify appropriate support structures required at different levels to implement a nation-wide support structure for inclusive education;

(iv) Review the activities of DNFE and identify how new and existing non-formal approaches might be used to achieve primary schooling for the 10% of children who currently have no access to any school due to severe remoteness;

(v) On the basis of these reviews and analysis, work with CPWEG to identify priorities for policy implementation for social development and inclusive education. The work of the multi-sectoral gender mainstreaming toolkit produced by GPAR should also be taken

into account. Reporting of this prioritisation should be in a format provided by the International ESDF Strategy, Program and Appraisal Specialist and International Financial and Performance Planning Advisor; and

(vi) Review drafts of the ESDF to ensure that priority policy actions and strategies identified are pro-poor and aimed at increasing access of girls and women, ethnic people and other disadvantaged groups in an equitable manner.

National Social Development and Inclusive Education Advisor (2 person months)

(i) In conjunction with the National ESDF Coordinator, facilitate access of the International Social Development and Inclusive Education Advisor to relevant staff in CPWEG, DNFE, Lao NCAW and NGOs;

(ii) Assist the Social Development and Inclusive Education Advisor to review NGO activity in the sector and to identify best-practice; and

(iii) Support International Social Development and Inclusive Education Advisor in discussions with DNFE and Dept. Early Childhood and Primary to identify strategies for reaching the unreached (no access due to geographic or special needs) as part of achieving EFA.

International Performance and Capacity Planning Advisor (3 person months)

The International Performance and Capacity Planning Advisor will work with the TA team to assist in the further development of the ESDF Implementation Planning process. The specific tasks are:

(i) Development of a Performance Assessment Framework to support the implementation of ESDF, including MoE and Development Partner performance.

(ii) Formulation of a Capacity Development Plan drawing on the Capacity Development Framework and focusing on capacity development requirements for ESDF Year 1, 2009-2010.

(iii) Formulation of an indicative draft Institutional Sector Reform Plan to meet the future requirements of ESDF implementation within the Ministry of Education, PES, DEB, VEDC and schools.

Technical Working Group composition

A Ministerial Decree issued in June 2008 established the Secretariat and Technical Working Groups to work with the TA team on the Education Sector Development Framework (ESDF). The composition of the Steering Committee and Focal Groups is as follows:

ESDF Steering Committee: Vice Minister Mr. Lytou Buapao (Chairperson), Mr. Sengsomphone Vilavoud (Vice Chairperson), Ass. Prof. Dr. Sisamone Sithirathvongsa, Mr. Sisana Boupha, Mr. Thongphiu Boudsady, Dr. Mithong Souvanvixay, Ass. Dr. Kongsy Sengmany, Dr. Phonephet Boupha, Mr. Sengthong Nolintha, Mr. Lyfoung, Mr. Chaluen Souvong, Mr. Heng Daovannaly, Ms. Phouangkham Somsanid, Dr. Ka Saluemsouk, Mr. Nouseng Nuanhuon and designated representatives from other Ministries and Government Agencies.

ESDF Secretariat and Advisory Support: Ass. Prof. Dr. Sisamone Sithirajvongsa (Secretariat Head), Mr Somkhan Didaravong, Mr Khounmy Phommanimith, Mr Praphad Sanarath, Ms Yangxia Lee, Mr Vimon Sisouva, Mr. Khamphao Thoneko, Mr. Inthasone Phetsiriseng, Dr. Mike Lally, Dr. Stephen Duggan, Mr. Mike Ratcliffe and Mr. Chris Perry

Basic Education Focal Group: Mr Somkhan Didaravong (Chair), Mrs Varadoun

Amalathithada, Mr Banchong Lathavanh, Mr Bounkhong Thoummavong, Mr Ai Jo Athphasouk, Mr Somboun Masouvanh, Mr Phomma Khamkikeo, Mr Xaiyadeth Xongmixai, Mr Chantho Thonlamy, Mrs Keomanivanh Phomemahaxay and Mr Kadam Vongduane (Secretary).

Post Basic Education Focal Group: Ass. Prof. Dr. Sisamone Sithirajvongsa (Chair), Dr. Onkeo Nuannavong, Mr Phouvieng Phoumilai, Mr Lao Cher, Mr Somphou Keopangna, Mr Mikhob Kingkittisack, Mr Soulikhamkone Sisoulath, Dr Boasavanh Keovilay, Mr Khamphone Xaisomphou, Mr Somlith Sirivong, Miss Chandeng Siripaphanh and Mr Inpeng Souvannasanh (Secretary).

Governance and Institutional Reform Focal Group: Mr Khounmy Phomemanimith (Chair), Mr Vanxay Noraseng, Mr Bounpanh Xaimountri, Mr Khamphuang Bounmixai, Mr Nouphan Oudsa, Mr Vilad Oudomsouk, Mrs Chansouk Sisengchanh, Mr Phomma Phommachan and Mr Sengkeo Phengsana (Secretary).

Human Resource Management Focal Group: Mr Praphad Sanalath (Chair), Mr Dalasack Rasavong, Mr Keo Tiangmany, Mr Maaly Vorabouth, Mr Thongmanh Souksengchan, Mr Xeng Songsinou and Mrs Methin Phanhlak (Secretary).

Social Development and Inclusive Education Focal Group: Mrs Yang Xia Lee (Chair), Mr Sithad Outhaythani, Mr Ounpheng Khammang, Mr Phengma Xaignavong, Ms Alongkot Khounkham and Mr Somphavanh Chanthalath (Secretary).

Planning and Budgeting Focal Group: Mr Vimon Sisouva (Chair), Mr Mixaykon Vannachid, Mr Khammoun Thongseng, Mr Kongsy Sisouphan, Mr Thipphamonh Chanthalangsy and Mrs Manichit Phommakhod (Secretary).

Annex 2 (A) Key Meetings, (B) Schedule of Workshops and (C) Key People Met

(A)

(A) Key Meetings

(A) Key Meetings

SD Stephen Duggan MY Marion Young AR Andreas Reinsch JW John Wilson TP Trevear Penrose ML Mike Lally

12-01-09

13-01-09

14-01-09

15-01-09

Meeting with Michel Ligthardt, WB Capacity Development Framework specialist

Meeting with DTE Mr Marli, TEED, Mr Somphon, Pre-service MOE

Meeting with Satomi Ueno, JICA

Meeting with Michel Ligthardt and PACSA

Alignment of ESDF and CDF and CDF baseline findings

Discuss MOE pre-service role in quota allocation & role of TE evaluation department

Obtain copy of SMATT evaluation reports for TOR 2

Alignment of ESDF and CDF; PACSA role in teacher appointments and restructuring

15-01-09

Meeting with PACSA: Mr Nisith Keopanya, Mr Bounchanh Niyavong

19-01-09

Visits to Vientiane Capital PES & Vientiane High School

20-01-09

Progress report and planning meeting with Mdm Yangxia

Sokpaluang Primary School Ms Thongkhana Chantaboulay, Director

Working meeting with SREAD regarding the options for institutional development and interactive discussion with SREAD

Meeting with Mr Kadam, SREAD, DPC JW, AR

Prioritisation Workshop – WB - Novotel

Video conference and TOR Discussion at the ADB office with ADB, AusAid and UNICEF representatives

Team

Clarify role in relation to quota allocation & civil service restructuring

Collect information on PES process in Vientiane Capital & Vientiane High School Mr Chandy Phommabouth, PES Director; Mr Bounthom Khenaphoum, Director

Workshop planning for 6th Feb 09

Discuss teacher appointments, incentives, development needs

At this meeting 4 options for institutional arrangements were presented and discussed. The leadership and staff of the unit worked out enabling and hindering factors for each of the options discussed

with IE Focal Group lead

(A) Key Meetings

(A) Key Meetings

Lao PDR EDSF Sector Study: Final Consultants’ Report - Annex 2

(B) Schedule of Workshops

(C) Key People Met Organisation / Department

Maiko Tajima

WFP – The United Nations World Food Programme, Head of School Feeding /

Sukhdeep Brar ADB Senior Education Officer [Now with World Bank]

Khamtanh Chanthy, ADB Lao PDR Resident Mission, Senior Implementation Officer (Social sector)

Mr. Sengsomphone Viravouth Acting Director General, MoE Department of Planning and Cooperation

Dr. Stefan Lock EU Delegation of the EC

Tim Napper AusAid, Second Secretary Development Cooperation

Norman LaRoque ADB Manila Social Sectors Division South East Asia Department, Education Specialist

Toshiyuko Matsumoto

UNESCO Bangkok, Assistant Programme Specialist Education Policy and Reform Unit (EPR)

Jane Davis AusAID, Senior Program Manager Development Cooperation Section [Now with UNICEF]

Inthasone PHETSIRISENG Deputy Team Leader, ADTA ESDF

Jerry Strudwick

World Bank, Senior Education Specialist Human Development Network,

Sengthong Phothisane World Bank Vientiane, Capacity Development Specialist

Michel Ligthart World Bank Vientiane, Consultant Capacity Development

Peter Pozorski

Latdavanh Chanthabouly

GTZ Lao-German Programme on Human Resource Development for Market Economy, Senior Advisor for Vocational Education and Training

GTZ, Secretary/C2, Lao-German Programme on Human Resource Development for Market Economy / HTVE Department MoE /

Veronica Mendizabal Joffé World Bank Human Resource Development Unit

Maki Hayashikawa

Kadam Vongdeuane

Stephan Giebel

UNESCO Bangkok, Programme Specialist in Gender and Quality Basic Education Asia-Pacific Programme of Education for All (APPEAL)

MoE Department of Planning and Cooperation, Deputy Head of Strategy Research & Educational Analysis Division

German Development Service (DED), Programme Manager Human Resource Development

Johan Lindeberg UNESCO Bangkok, Associate Expert Education and Human Rights

Vannalek Leuang MoE Head of Monitoring and Evaluation Division

Noupanh Outsa

MoE Department of Technical and Vocational Education, Deputy Director General

Darasack Ratsavong MoE Planning and Cooperation Department Administrative Division, Director of Project Management Division

(C) Key People Met Organisation / Department

Le Thu Huong

UNESCO Bangkok, Programme Specialist Education Policy and Reform Unit (EPR)

Juana Aristazabal Pinto ECD, Attachée Cooperation

Ian Pascoe Coffey International Development Pty Ltd, Manager, Business Systems

Julian Kramer Save the Children Norway, Country Representative

Claude Tibi Consultant

Peter Grimes

Canterbury Christ Church University- Faculty of Education, Center for Enabling Learning, Senior Lecturer, Advisor

Arunsiri Phothong EU ECD Bangkok, Programme Officer

Dr. James Hough

Impèng SOUVANNASANE

Professor Emiritus of the Economics of Education, Loughbrough University Consultant in Education and Economics

MoE Department of Planning and Cooperation, Head of Division

Ms Phonesavanh PHILAVANH Room to Read, Program Director

Richard Noonan Education and Training Economist

Mala CHERAKHA Nam Ham 2 Hydro Power Project Lao PDR

Vongphachanh VONGSIKEO Cobri-PS – Road-Bridge-Building & Irrigation Construction

Mr. Nisith KEOPANYA

Director General, Public Administration and Civil Service Authority (PACSA), Department of Civil Servants Management

Mr. Bounchanh NIYAVONG Public Administration and Civil Service Authority (PACSA), Department of Civil Servants Management, Director of Civil Servants Information Division

Mrs. Kam SANGIEN Public Administration and Civil Service Authority (PACSA), Department of Civil Servants Management

Ms Khampaseuth KITIGNAVONG

MPM, Deputy Director General DPC / EDPII Project Director, Department of Planning and Cooperation

LyTou BOUAPAO Deputy Minister of Education

Suhas Parandekar

Mr. Nisith KEOPANYA

Assoc. Prof. Dr. Sisamone SITHIRAJVONGSA

WB Country manager for the education sector

Director General, Public Administration and Civil Service Authority (PACSA), Department of Civil Servants Management

Department for Planning and Cooperation, Deputy Director General

Mr Sengkeo PHENGSANA, SREAD

Mr Khamsone SOULIYASENG

Mr VanhSay NORASENG

Mr Panya CHANTAVONG

National University of Laos, Faculty of Law and Political Science, Dean

MoE, National Education Standards and Quality Assurance Center, Director /

MoE, Education Standard and Quality Assurance Center, Acting Chief of Quality Assurance Division

Mr Khoma MoE, Education Standard and Quality Assurance Center, Deputy

(C) Key People Met Organisation / Department

Head

Dr. Panh Director SREAC

Assoc. Prof. Dr. Panh

Champathong Director SREAC

Mr Ly FOUNG MoE, Department of Secondary Education, Director General

Peter Gam BENC Team Leader EC

Terence McCaughan Plan Country Director

Yangxia Lee MoE Centre for Promotion of Education for Women-EthnicDisabled (CEWED)

David Hagen Team Leader, Strengthening Higher Education Project, DHE MOE

Max Walsh Curriculum Development Consultant, PPTA Higher Education

Les Bohm Capacity Development consultant PPTA Higher Education

Mr Bouaphet Head Incentives

Mr Oankham Head HRM, Division of Incentives & Management

Panya CHANTAVONG MoE, Education Standard and Quality Assurance Center, Acting Chief of Quality Assurance Division

Annex 4 Education Sector Development Framework – Policy and Regulatory Drafting Matrix (including all references to legislative instruments required under ESDF, references to the HRD workshop on February 24th 2009 and to the BESDP Sector Core Policy Matrix)

Reference

1 A Inclusive Education for ‘out of reach children’ (Equitable Access)

CPEGEGD X Development of guidelines and strategy for mobile teaching

Comments, Process & HR implications

Start Responsibilities

3 B Inclusive Education (Equitable Access)

CPEGEGD X

Inclusion of students from poorer or disadvantaged backgrounds through provision of an expanded scholarships program for primary, lower and upper secondary education.

Guidelines enacted through a Ministerial Decision combined with the appropriate staffing and teacher deployments/ assignments

ESDF urges mobile teaching strategies as an immediate priority to reach the ‘out of reach children’

2009 DLHRD, Center for the promotion of education for girls, ethnic groups and disabled, Department of teacher education, SREAC, RIES, Department o Primary and Preschool Education (DPP)

Ministerial Decision or other regulation and, and guidelines on criteria for the inclusion of students

The ESDF aims on: 20% of all Grade 4 and Grade 5 students receive pro-poor scholarships from 2010. And 20% of all lower and upper secondary students receive pro-poor scholarships against agreed eligibility criteria from 2010 The criteria for inclusion should be realistic and flexible taking into account the personal situation of the beneficiaries.

2010 Center for the promotion of education for girls, ethnic groups and disabled DPP, DSE, DOP, DOF,

3 B Pro Poor

(Equitable Access)

CPEGEGD X

Provision of pro-poor subsidies and scholarships to children from poorer families for school Grades 69 and targeted Grade 1-5 subsidies

PM Decree The ESDF targets Expansion of primary school feeding program to cover the 47poorest districts by 2015. Expanded Grades 6-9 scholarships program for 20% of students from 2010 onwards beginning with the 47-poorest districts.

2010 DPP, DSE, NFE, DOF, DOP, Center for the promotion of education for girls, ethnic groups and disabled Min. of Finance ,

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education. 90

4 A Governance and Management

DEI X X X (C3) Realigned functions and operational guidelines for the implementation of revised responsibilities at all levels to strengthen education management1

Revised expenditure and service assignment at each level of education administration with school block grants assigned under the central MoE budget.

Ministerial Decision Complete organizational assessments and functional reviews of central MoE, provincial PES, DEB and VEDC and the formulate guidelines for revised operations by the end of 2010 are proposed by the ESDF.

HR: Training for district-level personnel in the new personnel planning & management system

BESDP: MOE shall have issued a directive requiring PESs to prepare provincial plans based on school mapping carried out pursuant to the EFA Plan and aligned with the new budget format and processes.

2009 Dept. of Education Inspection (DEI)

5 B Decentralization

(Governance and Management)

DEI X X Redefined role of inspection services at the central, provincial and district levels and introduction of performance measures for all education staff at all

Ministerial Decision(s)

ESDF targets improved efficiency in school performance monitoring planning and management / Revised staff planning and agreed education officer

2010

1 Implementation planning for the ESDF will take account of progress in the BESDP. The BESDP has strategies in support of capacity development and institutional reform including: (i) approved regulations and revised manuals to strengthen the role and responsibilities of PES and DEB in relation to decisions to the primary and lower secondary school network; (ii) support for ensuring that national policy is executed at the local level; (iii) MoE issuing directives to PES to report their budget and actual expenditure in an outcome oriented budget format and processes, and (iv) MoE issuing regulations and revised manuals for teacher recruitment and deployment. The BESDP will also work with MoE on a directive requiring the PES to prepare provincial plans based on school mapping and aligned with a new budget format and processes.

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

Department of Education Inspection, DOP

levels

Comments, Process & HR implications Start Responsibilities

responsibility by end 2011. Introduction of performance appraisal across the national education system

HR: Training of staff for review of current system functioning to enable revised management operations & redefined role of pedagogy/inspection services; training of staff to operationalise the system

6 A Cross cutting DLHRD X Regulations required by the Education Law from 2007

Different Implementation plan for the Education Law has been developed with international assistance. This plan includes concrete recommendations for the implementation and required regulations.

2009 DLHRD and Departments concerned

7 A Financial Management

(Governance and Management)

8 A Financial Management

(Governance and Management)

DoF X (C4) MTEF for Education

Appropriate LI necessary for implementation

BESDP: MOE shall have initiated development of a medium term expenditure framework for education. -> 2009

MOE shall have developed an education sector MTEF. -> 2010

DoF X X (C2) Regulation of Block Grants and Implementation Guidelines

PM Decree or MoE/MoF Inter Ministerial Decision on Block Grants in Education

According to an analysis undertaken by the ESDF GIR team there seems to be no need to amend the Budget Law from 2006 especially looking at the PM Decree No

2009 MoE Dep. of Finance, MoF in Preparation of the Fiscal Year 2009/10.

DPP, DSE, TVET, Higher Education

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

9 A Financial Management (Governance and Management)

DoF X X X (A3) Formulation of regulations and operational guidelines for the design, management and implementation of proposed ECE and school block grants alongside a

25/PM - National Budget Law

Implementation Decree from 2008-02-14. However, there is an urgent necessity to draft the regulations for the introduction of block grants, because they are a central tool for the implementation of ESDF. This should be accompanied by Implementation Guidelines for the different types of block grants envisaged in the ESDF.

Add Unit cost and Recurrent expenditure in each level (preschool - Higher Education)

BESDP: MOE shall have piloted the new financial management system, which incorporates budget preparation and submission at provincial level, in the three BESDP target provinces -> 2009

MOE shall have adopted the revised financial management systems for implementation at the national level.

Ministerial / Inter Ministerial Decision(s) and Guidelines

HR: Staff development to create an action plan to strengthen financial EMIS system against agreed PI; staff development to strengthen

20092010 MoE, MoF, PACSA DOF

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

focus on capacity building at central MoE, district and school levels for accounting and reporting; implementation of revised guidelines for the current block grant mechanisms for TVET, TEI and higher education institutions taking account of the need for a better defined sets of performance results and proposed revisions to cost sharing.

district level personnel planning & management systems; staff development for planning & developing guidelines for strengthened technical & financial management systems in postsecondary institutions

BESDP: MOE shall have issued guidelines for the management and use of education development funds allocated to schools. MOE shall have identified criteria and issued guidelines for selection of scholarship recipients. -> 2009

10 A Equitable Access DoF X Free Compulsory Education Decree or Instruction on Abolition of School Fees for Compulsory Education (Primary Education)

11 B Abolition of fees for education (Equitable Access)

DoF X

Abolition of registration and instructional fees for students in early childhood playgroups, primary, lower secondary, Issue of a decree, regulations and compliance monitoring guidelines in 2010.

Decrees, compliance & monitoring guidelines and other regulations (instructions) for a nationwide information and advocacy campain

The MoE has to determine its position to free compulsory Education and develop a policy and proposals for a decree or the amendment of the Education Law adding the provision of free compulsory education.

47 poorest districts are proposed for a pilot

This has to be combined according to the ESDF with the Introduction of formulae and unit cost based non-salary school block grants to all primary and secondary schools to offset loss of school income through abolition of

20092012 MoE, MoF DPP, NFE, DOP,DOF, SREAC

2010 DPP, DSE, DTE, DOP, DOF, Faculty of Education, TVET

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

12 B Pay & allowances for teachers & school directors (Governance and Management)

Issue of a decree, regulations and compliance monitoring guidelines in 2010, with a nationwide information and advocacy campaign. MoE guidance on a pilot scheme for the phased and incremental introduction of fee abolition. MoE instructions and guidance on a pilot scheme for the phased and incremental introduction of fee abolition.

Comments, Process & HR implications Start Responsibilities

fees.

- We agree on the abolition of fees for basic education, but should replace by other thing (block grant…)

- For TVET and Teacher education the fee is necessary - For the special needs the government should establish the credit principle

DoF X HR: MOE/PACSA/MOF review in 2010 pay & allowances for teachers & school directors

14 B PPP (Equitable Access) DoF X Regulation of Cost sharing for post-basic education

PM Decree on the modality of Cooperation with Partnership.

This regulation should give clear guidance on how to implement the cost-sharing arrangements, what the maximum burden on students and parents have to take and what criteria are applied.

2010 MOE/PACSA/MOF

2010 TVET, Higher Ed. Dept. of Private Ed. and Private, DOP, DOF

13 C School Support (Governance and Management, Equitable Access)

15 C School Management (Governance and Management

DoF X

Provisions in support of expanded 6-9 schools

Ministerial decision

2011 DPC, DOF

DoF X HR: MOE, DTE & DPP develop In Service Training in school/community development planning for 2,500 school directors & 15,000 teachers.

2015 MOE/DTE/DPP

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

16 A Governance and Management

DOP X (C5) MOE shall have revised the current regulation on the management of MOE assets

(Decision No. 66, 28 January 2004) for effective management of such assets.

Ministerial Decision

DOP

18 A Public Private Partnership (Governance and Management)

DoP X (B2) Strategy, and action plan appropriate LI necessary for implementation

MOE Dept of Private Education shall have developed a strategy, incentives and action plan for facilitating participation by the private sector (e.g. public trusts, private bodies, charitable institutions etc.) in the provision of school education. -> 2009

PMO shall have approved the strategy, incentives, and action plan for facilitating participation by the private sector (e.g., public trusts, private bodies, charitable institutions) in the provision of school education.

-> 2010

2009

28 A Strengthened institutional arrangements (Governance and Management)

DOP X X Revision of Manual of Working procedures of all departments according to the Structure of MoE and ESDF needs

26 A School Management DOP X Revised school organizational structure

Working procedures introduced through the usual regulation

Ministerial Decision

The MoE introduced a new organizational structure, but the working procedures of many departments are still the old ones from 2001-2002

HR: System development & training implications

Ministerial Decision, Instruction letter or This drafting activity has to be linked to adequate capacity

2009 DOP and Departments concerned

2009 Division for Legislation and HRD (DLHRD) as

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

MoE, DoP, SREAC

implications Start Responsibilities

(Governance and Management)

Guidelines MoE On organizational structure of schools

development activities necessary to strengthen the capacity of the school principals … to fulfill their new obligations according to the ESDF(from No 9)

The current organizational structure of schools should be analyzed. A study could be undertaken by SREAC in cooperation with other departments concerned. The work should draw on available experience and concepts such as the School of Quality concept.

Lead Deparment, SREAC, Center for education quality and quality assurance, other Departments 2 A Teacher Deployment

(Equitable Access)

X

Introduction of new regulations in support of teacher deployment encouraging new TEI graduates to be appointed to underserved schools in underserved districts,

Ministerial Decisions, Guidelines

Ministerial Instruction on assignment of the responsibility for each Department

This is an area where most likely different line ministries and agencies will be involved.

2009 MoF, PACSA DOP, DTE, Faculty of Education 27 A Decentralization

(Governance and Management)

X X

Revised legislation and regulations consistent with revisions to staff functions, responsibilities and mandates at the central, provincial and district levels including primary and secondary school education responsibilities for VEDCs.

Decree on the Implementation of Education Law.+ Ministerial guideline

Target: MoE to set parameters for the upgrading of managers and teachers by 2015.

The Capacity Development Framework drawn on as a baseline for determining targets. Additional technical assistance provided by the ESDF in Governance and Institutional Reform over first quarter of 2009.

2009- DOP and Department concerned / HRD

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

17 A Remuneration & Incentives

(Governance and Management)

Reference

DOP X

Measures in support of effective staff (non teaching personnel) remuneration and incentives to ensure quality improvements in education service delivery

Type of LI Comments, Process & HR implications Start Responsibilities

HR: System development & training implications

Revision and amendment of remuneration and incentive schemes> amendment of decrees (especially PM Decree 82) and performance based Remuneration and Incentive Guidelines

New PM decree on teacher education

The teacher will separate of civil servant

Amendment of Decree 82 and other regulations allowing for more flexibility for remuneration and incentive schemes motivating the management staff of the MoE at all levels to improve the quality of service delivery and administration. This can be combined with appropriate guidelines for MoE, PoE and DEB. This can only be done in cooperation with the MoF, the PM Office and PACSA in a coordinated approach.

20092010 DOP, DLHRD, SREAC & PACSA, PM Office

22 B Personnel

(Governance and Management)

32 B Teacher Supply

(Equitable Access)

DOP X

Introduce new staffing norms for schools, based on a pupil: teacher ratio formula with a staff salary budget planning based on this formula

DOP X X Revised policy and regulations for delegating authority to provincial education authorities for teacher supply planning. Issue a decree outlining supply and demand

Ministerial Decision ESDF targets a decree for a teacher quota system and budgeting based on a PTR of 34 for primary, 30 for lower secondary, 25 for upper secondary, 20 for TVET and higher education in 2010 with targets reached by 2015.

Ministerial Decision and Ministerial Instruction

Provide enough teacher in accordance with the Norm

HR: System development & training of staff in how to manage (a) recruitment of students for teacher training & (b) selection of trained

2010

2010 DOP, DTE, DOI, Province and District Dept. Of Education Inspection (DEI), SREAC

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

DOP, DLHRD, SREAC, PACSA

30 B Teacher Supply (Equitable Access)

DOP X X

guidelines and respective central, provincial, district and TEI responsibilities by the end of 2010 against agreed pupil: teacher ratio (PTR) norms.

Establish a PTR-based school staffing norm with implementation planned for 2010.

Revise regulations and operational guidelines for matching teacher supply and demand within teacher education institutions.

Comments, Process & HR implications Start Responsibilities

teachers for teaching posts

31 B Teacher Deployment, Decentralization (Governance and Management)

DOP X X

Revised regulations setting out the authority and responsibilities of the provincial education service in managing teacher supply and demand planning

Decree and guidelines

The ESDF aims on equitable deployment and distribution of better qualified teachers across urban, rural and remote schools. Provide enough teachers in accordance with the norm

HR: Training of DEB & school staff in implementation of new process for school teacher appointment

2010 DOP, other Department concerned

Ministerial Decision on Organization and Functioning of MoE or Decree on Implementation of Decentralization in Education or complementing regulations

The implementation of revised regulations is combined with a PES capacity development action plan formulated taking account of provincial capacity building actions detailed in the Capacity Development Framework.

HR: Training in developing new processes for managing teacher supply & demand planning & in implementing it

2010 DOP, DTE

33 B VEDC/ Participation and Involvement/

DOP X

Establishment of a regulatory framework for VEDCs to enable them to

Decrees, Instructions and Guidelines eventually changes

There is already existing the Ministerial Decision 2300/MOE.DOP.08 On the

2010 DOP, DPP

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

Decentralization

(Governance and Management))

Reference

Proposed Drafting Action Type of LI Comments, Process & HR implications Start Responsibilities

support enhanced schoolcommunity management … regulations enabling VEDCs to enable them to play as community agencies a crucial role in the management of school block grants, school operational budgets and school development planning …

of budget law or PM decrees or inter Ministerial Decisions with MoF

The regulations for block grants have to be designed accordingly allowing the VEDC to play the envisaged role

adoption of lessons learned from Feunag and Xanakham Districts, Vientiane Province, Vientiane Capital, 2008-09-03 (MDoDEDC&VEDC). This decree so far is relatively general and more support for VEDCs or amendment and adding to the current regulation will be needed.

29 B Teacher Deployment (Equitable Access, Governance and Management)

X

Introduce new conditionalities related to remote and difficult postings including 100% housing allowances and newly posted teachers receiving a payment in advance of taking up their post. Regular home visits are included as part of an incentive program.

PM Decree ESDF targets new guidelines developed, appraised and issued for implementation by 2010/11. Criteria developed with an emphasis on the deployment of female teachers and teachers with ethnic language by 2010/2011. Newly certified teachers enabled to make direct application to remote area schools with vacancies subject to compulsory probation by 2011

20102011 DOP, Department of Finances, PACSA DPC, DEI, Province, District

24 B Equitable Access DOP X

Introduce new guidelines for remote and under-served area teacher deployment with increased school posting allowances for remote and disadvantaged schools

Ministerial Decision or Instruction

ESDF: Teachers with an ethnic language given priority for fill remote school vacancies in place by 2010. Graduates with an ethnic language given priority for quota places in teacher training (immediate priority). This process will need consultations with local levels.

20102011 DOP, DLHRD

23 B Decentralization (Governance and Management)

DOP X X X (A2 & C1)

Revised regulations for reorganization of core central, provincial and district organization/ management functions as well as revised

Decrees, guidelines and other Regulations

Combination and strengthening of institutional arrangements for ESDF implementation. The core functions include expenditure

20102014 MoE, Department of Organization and Personnel

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

governance arrangements.

assignment and personnel management as well as decision making processes. Improvement of provincial and district level management in line with national policies with revised budgeting procedures including the use of school block grants as well as defining central MoE and provincial authority capacity to set and monitor agreed norms for provincial, district and school staffing levels and an associated salaries budget with increased delegated authority to provincial authorities to manage salaries budgets.

HR: Training to develop staff to implement an action plan to strengthen EMIS against agreed performance indicators.

BESDP: MOE shall have approved regulations and revised manuals to strengthen the role and responsibilities of PES and DEB in relation to decisions about changes to the primary school network (including new schools, school closures, change in school

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

20 B Personnel (Governance and Management)

DOP A

Nationwide introduction of a staff performance appraisal system

Ministerial Decision

19 C Teacher Deployment (Governance and Management)

DOP X X

Introduce accelerated promotion for school head teachers based on leadership programs, planned performance appraisal, induction programs and new headteacher allowances

Comments,

Process & HR implications Start Responsibilities

status, e.g., multigrade schools offering 5 primary grades etc.)

The MOE shall have issued guidelines for standardizing data collection, data processing and data analysis.

-> 2009

This works might need coordination with PACSA and consistency with PM Decree 82 and others

HR: Support for development of an appraisal system, training in its use & evaluation of its effects

Ministerial Decision Target: Prepare criteria and scheme over 2010. Implementation from 2011. Review and revise criteria and the scheme in 2013. Impact evaluation studies conducted over 2014. School head teachers appointed to remote schools provided with additional incentive allowances.

HR: Support needed to develop new criteria & incentives for school director promotion.

ESDF proposes (priority 4 for HR Focal Group) that GOL establish a new Education & Management Training Institute from 2011/2 & induction of staff would be required to

20102015 DOP, DLHRD & PACSA

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

2011 DOP, PACSA

35 C School Management (Governance and Management)

34 B Teacher Deployment (Equitable Access, Governance and Management)

support this.

DOP X School management Principle Ministerial decision The K-12 school structure is determined in the Education Law from 2007 (Article 16-18) and should be enacted by now according to Article 79 EL. However, the change process from the current 11 years of schooling system to the new system takes some time for transition and the MoE. The MoE has developed a time phased schedule for the introduction of K-12.

DOP X X (B1) New guidelines for ensuring the more effective deployment and use of teachers including expanded multi-grade teaching, teachers trained in 2 or 3 subjects, and working across more than one school. Introduce new guidelines for ensuring the more effective deployment and use of teachers including expanded multi-grade teaching, teachers trained in 2 or 3 subjects, and working across more than one school

Ministerial Decision ESDF: New guidelines introduced in schools and TEIs over 2010-2012 including guidelines on minimum teaching hours. Department of Teacher Training becomes responsible for the general management and coordination of teacher training (immediate priority). Department of Teacher Training responsible for the preparation of operational and strategic plans (immediate priority).

BESDP: MOE shall have prepared and submitted to the PMO for approval a Teacher Recruitment and Deployment Policy Framework, action plan and supporting guidelines for the management, recruitment, deployment and career development of teachers. -> 2009

2011 DOP and Departments concerned

20112012 DOP, Department of Teacher Education, Department of Finances, PACSA

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

25 C Personnel (Governance and Management)

21 C Language of instruction/ teaching-learning tuition (Equitable Access/ Inclusive Education)

Reference

PMO shall have approved the Teacher Recruitment and Deployment Policy Framework, action plan and supporting guidelines. -> 2010

DOP X

Agreement between MoE and the provinces on education officer/teacher promotion systems

Ministerial Decision Precondition for this drafting task is the underlying agreement

20112015 DOP, DLHRD, SREAC

DOP X

Introduction of Lao as language of instruction in grade 1 and 2

Implementation Guidelines for the implementation of the Education Law enacted through a Ministerial Decision of the MoE This might have to be combined with an appropriate curricula development.

This provision is included in the Education law Article 33, but not followed in practice. The issue of the language of instruction has to be seen in context with the large number of ethnic groups. Here a sensitive approach is needed. Article 33 EL should not be seen as an obstacle for Inclusive Education.

2012 DOP, SREAC, RIES

36 B Progressive Promotion (Quality and Relevance, Management and Governance)

DPE X

Drafting a degree combined with a guideline on automatic promotion providing for a phased introduction in primary school

Ministerial Decision or Ministerial instruction on progressive promotion

There is a need for the MoE to determine its policy for automatic/ progressive promotion taking into consideration quality aspects of primary education. It is recommendable to pilot automatic/ progressive promotion to verify approaches to be introduced. SREAC could produce a research study on automatic promotion, to summarize and analyze international experience. The target of ESDF is 98%

2010 DLHRD, Dep. of Primary Education, SREAC, Education quality and assurance Center, RIES

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

37 B ECE (Equitable Access) DPP X

Clarification of requirements for different types ECE institutions and establishment of requirements

implications

automatic/ progressive promotion rates in primary and lower secondary education from 2015 onwards.

HR: Training of primary teachers & school directors in how to manage promotion is essential

Ministerial Decision on ECE establishments in detail defining different terms like community based play groups, play grounds and Kindergartens & Guidelines and Requirements for the establishment and operation of ECE institutions.

Terms like community-based play groups, play grounds and others are widely used and might even be introduced through different projects and pilot approaches, but are not defined in the law. The Education Law Art. 14 provides only for Nurseries and Kindergartens. That’s why there is clearly a need for clarification and regulation of these forms of ECCD

2010 Department of Primary and Preschool Education, Department of Private Education, DLHRD, SREAC, RIES, Center for the promotion of education for girls, ethnic groups and disabled

X

1. Drafting a policy on multi-grade teaching combined with a regulation on implementation, methodology and implementation guidelines as well as an amendment of remuneration and incentive schemes

2. Development of

Ministerial Decision on multi-grade teaching, Implementation and methodological guidelines and technical guidelines.

TEI Curriculum for multi-grade teaching

The MoE should establish an appropriate policy for the introduction of multi-grade teaching taking into account that this measure is thought to be of temporary character. According to the ESDF. However, it can be assumed that multi-grade teaching will be important for remote and underserved areas in a longer perspective.

2010 Department of Teacher Education with DLHRED and SREAC, RIES DPP

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

41 B Multi-grade Teaching (Equitable Access, Quality)

DPP

40 B Reducing barriers

(Equitable Access)

39 B School enrolment and ECE (Governance and Management, Equitable Access)

38 A School Management (Governance and Management)

(for general Education)

DPP X

technical guidelines for multi-grade classrooms

+ setting standards for multi-grade classrooms

3. Establishment of an appropriate multi-grade teaching curriculum for TEIs

Reducing Cost barriers for basic education

Elimination of primary and lower secondary school registration and instructional fees.

Ministerial Decision To be seen in conjunction with the regulation to make primary education free. So the issue here is to reduce the cost barriers for Lower Secondary Education.

ESDF proposes a phased approach accompanied by a nationwide public information campaign

20102011 DPP, DSE, DOP, DOF

DPP X

Improved regulation of age 6 entry into Grade 1 and increased ECE opportunities for 5 year olds.

Ministerial Decision ESDF targets Expanded school feeding program for 6year olds from 2010 onwards. Expanded community-based nutrition programs for 5-year olds from 2011/2012.

20102012 DPP, DOP

DSE X Guidelines on the strengthened role of school principals, school boards/committees and senior teachers of combined lower and upper secondary schools (school management guidelines)

Elaborate new Regulation and revise the existing document about school management

This drafting activity has to be linked to adequate capacity development activities necessary to strengthen the capacity of the school principals … to fulfill their new obligations according to the ESDF

The current organizational

20092010 Department of Secondary Education, DLHRD, SREAC DPP, DPE, DOP

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

42 C Teacher Training (Quality and Relevance)

43 A TEI (Governance and Management)

Reference

Revised school organizational structure (from No 13)

structure of schools should be analyzed. A study could be undertaken by SREAC in cooperation with other departments concerned (Dep. Of Primary and Secondary Education, RIES). The work should draw on available experience and concepts such as the School of Quality concept.

DTE X

DTE X X

Transforming provincial teacher education institutions into award bearing Degree institutions for trainee teachers

Decrees issued over 2010 in support of strengthening teacher training and enabling TEI to offer a 12+3 degree program from 2012 onward (with a total enrolment of 15,000)

Ministerial Decision Strengthening TE

HR: MOE provides 20% of teachers with In Service Training (INSET) annually

Issue the rule on strengthening the institutions

HR: Skills for developing a National Teacher Education Plan & new teacher education curriculum

MOE, DTE

20092015 DTE, Faculty of Education, TEI, RIES

44 B Teacher Training (Governance and Management)

DTE X

Revisions to the structure and function of provincial teacher education institutions (TEI) for teacher training of Grade 12 graduates. Add Non Formal Education

- Ministerial Decision

- Agreement within the government (donor)t and the trainee teacher

- Government(donor):

+ Monitor

+ Provide incentive/ welfare/scholarship

+ Upgrading

+ staffing after finish the study

2010 DOP, DTE, DPC, DOF, Faculty of Education, DTE, TEI

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

46 B Teacher Education

(Equitable Access)

DTE X X Increased level of scholarship provision for trainee teachers based on acceptance of remote posting and pro-poor scholarship allocation to other sub-sectors.

Ministerial Decision or Inter Ministerial Decision MoE and MoF and guidelines

All students entering teacher training on scholarships by 2010. Preparation of a road map on teacher education systems development by 2011 (based on Objectives 6.1-6.12 of the EFA NPA). Around 20% of students in upper secondary school, TVET and university awarded scholarships. HR: Development of staff to manage teacher supply planning to ensure that it matches national needs

20102011 DTE, TTis, Faculty of Education, DOF

45 C Teacher Training DTE X X Specific school postings for trainee teachers at the beginning of training linked to a signed agreement to take up the post within the identified school (Pre-service Training)

PM decree Introduce new recruitment guidelines in TEIs from 2011. Newly certified female and teachers with an ethnic language posted to schools with vacancies from 2011 with expanded appointments from 2012. TEI graduates from remote villages given preference for scholarships and remote setting appointment with incentive allowances. Expansion maintained until there is sufficient teachers in remote and ethnic group schools. Province that send the students to TEI should provide incentive:

+ Monitor the student learning

+ In the practical period the province should provide the allowance (food, travel…) for more attractive and avoid the flow brain

HR: Support needed to develop a national teacher

2011 DOP, Department of Teacher Education, Department of Finances, PACSA, Province

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

47 A Inclusive Education –Reentry of out-ofschool children

(Equitable Access)

48 B Non Formal Education

(Quality and relevance)

49 A Quality Assurance

(Quality and Relevance)

NFE X

Criteria for reentering the formal school system for outof-school children

Ministerial Decision on Criteria for reentering formal schooling for out-ofschool children

NFE X X Development of a NFE curriculum Ministerial Decision on NFE curriculum

training plan & for managing & monitoring the new system

This regulation should be harmonized with NFE approaches. NFE could be used as a vehicle to help outof school-children back to formal schooling.

HR: Strategy & action plan for CLC includes orientation & training of new & existing staff

2009 DLHRD, SREAC, Department of Non Formal Education DPP, DSE

2010 NFE, Center NFE

QAC X Implementation of national certification and accreditation standards, procedures and systems … implementation of the teacher certification and accreditation system

Ministerial Instruction, regulations

According to TESAP. The drafting action will be triggered by the development and introduction of underlying standards, procedures and systems

2009 DOP, Education quality and assurance Center

51 B School Management (Governance and Management)

QAC X X Nationwide school performance monitoring systems

Ministerial Decision Precondition is the development of the school performance monitoring system

HR: Training of primary & lower secondary school directors needed for school performance monitoring planning & management

2010 DOP and Departments concerned, QAC

53 B Quality and Relevance QAC X X Develop new institutional arrangements for nationwide student performance monitoring requirements to improve learning outcomes and employment

Ministerial Decision or Instruction

Underlying are an action plan for the Centre for Quality Assurance and steps to monitor Grades 3, 5, 9 and 12 standards from 2010.

2010 DOP, DLHRD, Education quality and assurance Center , DOP

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

52 C Quality and Relevance

Reference

ESDF HRD BESDP

QAC X X

Proposed Drafting Action

opportunities.

Type of LI

Comments, Process & HR implications Start Responsibilities

HR: Staff development required to enable development of new arrangements for nation-wide student performance monitoring

Define minimum standards of student achievement for Grades 3, 5 and 9 and assure a shared understanding of minimum standards amongst teachers, parents and other stakeholders.

Ministerial Decision ESDF targets defined learning outcomes to be introduced from 2011 School and community agreements and standard report cards in place by 2012.

HR: Action plan needed to train staff how to develop & implement new arrangements for nationwide student performance monitoring; training for teachers needed to help them understand minimum standards of student achievement & how to work towards achieving them

20112012 DOP, Center for Education quality and assurance Center

50 C Curricula development (Quality and Relevance)

QAC X X

Introduction of new education standards monitoring in Grades 3, 5 and 9 including Grade 9 as a nationwide examination.

New Standards and implementing decree have to be developed Ministerial Instruction on evaluation

This task needs a complex approach

HR: Staff development needed to assist staff to develop K-12 curricula & define minimum standards of student achievement

2015 RIES, DPP, DSE, DEI, QAC

54 B ECE (Quality and Relevance) RIES X

55 A Curricula Development (Quality and Relevance)

Development of an ECE school readiness curriculum

RIES, VEDC X X X (B3&4) Revised curriculum, strengthened teaching, and improved learning with learning outcomes more

Ministerial Decision on ECE curriculum

Revise the Ministerial Decision on the Curriculum development for

The curriculum for ECE should enable the children for the first grade / Preschool education

The curricula have to be developed/ changed in the ‘usual’ way and adopted according to MoE procedures

2010 RIES, Department of Primary and Preschool Education

20092015 RIES, TVET-VEDC, Higher Ed. Dept. of Private Ed. DOP, DOF

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education. 110

56 A Teacher Training (Quality and Relevance)

57 B School Managemet (for TVET and Higher Education)

TEI X

closely aligned to employment

TVET and Higher Ed.

HR: Skills for curriculum development & definition of minimum standards

BESDP: MOE shall have approved the revised curricula for primary (Years 1-5) and lower-secondary education (Years 6-9).

GOL shall have approved the revised lower secondary curriculum (Years 6–9).

MOE shall have developed a revised upper secondary curriculum (Years 10–12) taking account of the revised curricula for Years 1–9. & MOE shall have approved the use of new LSE textbooks and teachers guides. -> 2009

MOE shall have approved a revised upper secondary curriculum (years10-12). ->

2010

TVET DHE X

Developing a comprehensive but flexible teacher training curriculum reflecting 5+4+3 schooling structure

Ministerial Decision Revise the appropriate curriculum

HR: Staff trained under TTEST may contribute to this process

2009 TEI, Faculty of Ed. Education quality and assurance Center, RIES,

Ministerial Decision on Education management (TVET and Higher Education)

The current organizational structure of schools should be analyzed. A study could be undertaken by SREAC in cooperation with Dep. of

TVET, Higher Ed. DPE, DOP

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

58 A TVET and Higher Education (Quality and Relevance)

Reference

TVET DHE X

Development of degree level courses for TVET and Higher Ed. teachers in training

Develop Institutional standard, Curriculum standard ,staff standard for expl. The degree of Director? ,

Decision of Minister

Higher Education.

2009 TVET, Higher Education, Dept. Private Ed., DOP

59 B TVET and Higher Education (Vocational Training) (Quality and Relevance)

TVET VEDC X X

Setting new education and training Standards for the vocational training and technical education syllabus including new curricula programs meeting social demand

Ministerial Instruction HR: MOE DTVE prepares plans to train 300 new TVET graduate instructors & teachers p.a. by 2012, but a budget identified

20092015 TVET, Higher Education, DPE, DOP, Education quality and assurance Center

Legend & Explanations: P: Priority – A Immediate Priority (start in 2009), B – Short term priority (start in 2010), C – medium term Priority (start 2011 - 2015); LI: Legislative Instrument (Laws and Regulations) / HRD here refers to identified priorities according to an ESDF HRD workshop on February 24th 2009 / P-WS1: MoE Regulatory Drafting Prioritization Workshop on March 3rd 2009 (The red marked comments and entries are added by this workshop) / BESDP: Basic Education Sector Development Project – Policy Matrix ADB started the Basic Education Sector Development Program in 2009 (BESDP) with a program loan of US$8.9 million for 2007-2010 and a project grant of US$12.66 million for 2007-2012 aimed on expansion of equitable access to, and improving the quality of, school education, particularly lower secondary education.

Annex 5: ESDF International Social Development and Inclusive Education

Annex 5.1 Final Presentation – IE Policy Writers Workshop, 25th March 2009

ESDF: Social Development and Inclusive Education

Social Development and Inclusive Education Technical Group Workshop

POLICY FORMULATION TRAINING

ESDF: Social Development and Inclusive Education

Policy differs from rules or law. While law can compel or prohibit behaviors(e.g. a law requiring the payment of taxes on income) policy merely guides actions toward those that are most likely to achieve a desired outcome.

Policy or policy study may also refer to the process of making important organizational decisions, including the identification of different alternatives such as programs or spending priorities, and choosing among them on the basis of the impact they will have. Policies can be understood as political, management, financial, and administrative mechanisms arranged to reach explicit goals.

ESDF: Social Development and Inclusive Education

EDUCATION POLICY refers to the collection of laws and decrees that govern the operation of the education system.

A GOAL (or objective) consists of a projected situation which the MoEplans or intends to achieve, set within a defined deadline.

 specific

 measurable

 time-bound eg. Achieve universal primary education enrolment by 2015 and universal primary education completion by 2020.

ESDF: Social Development and Inclusive Education

Levels of policy design:

 Strategic: Should we mainstream inclusive education?

 Multi-programme: How should we allocate resources targeted to inclusion of gender, ethnic and disabled groups?

 Programme: How and where should we provide inclusive education programmes?

 Issue-specific: How should children with moderate learning disability, girls, children from ethnic groups and children from poor families be included in mainstream schools?

ESDF: Social Development and Inclusive Education

In drafting the Inclusive Education Policy we need to consider:

WHO needs the Policy?

Policy MakersPOLICY DECISIONS

PlannersCOST AND BENEFITS OF ALTERNATIVE OPTIONS

WHO are the focal persons responsible at each level in the system?

WHAT are their responsibilities?

WHAT?

What Policies are currently in place in relation to equity, inclusion and education?

What are the key commitments already in place?

ESDF: Social Development and Inclusive Education

HOW to develop Policy Statements?

Refer to specific documents from MoEto develop policy statements

Consider the following questions:

-How is the policy to be disseminated and actioned?

-What level of enforcement is possible?

-What are the cost factors?

-How is the policy implementation to be monitored?

-indicators …data collection and analysis

-baseline data and targets

-do targets such as PRSO and FTI include IE indicators?

ESDF: Social Development and Inclusive Education

Sources of Information

Education Law

NESRS ESDF

ICE conference recommendations(handout)

Existing policies

Outcomes of workshops on 6th February 2009 (handout) and 18th-19th February 2009(handout)

Annex 5.2 Summary Report: ESDF Social Development and Inclusive Education Workshop, 6th February 2009

A Social Development and Inclusive Education Workshop was held on Friday 6th Feb 09 at MoE New Building, Rm 425, Vientiane.

The workshop was chaired by Mr Sengsomphone and facilitated by the staff of CEWED with support from the ADB ESDF Technical Team.

The workshop was attended by representatives from the MOE departments and government agencies

The purpose of the workshop was to develop the immediate, medium term and long term priority actions for SD & IE as components of the ESDF Implementation Plan

The objectives of the workshop were:

 To review the SD & IE goals, policy and strategies

 To develop the immediate, medium term and long term priority actions for SD & IE

 To give the opportunity for technical team participation in starting to develop the ESDF Implementation Plan for SD & IE

The participants worked in seven groups each group covering the following topics:

1. Gender group

2. Ethnic group

3. Disabled children group

4. Children from poor families group

5. ECE for 5 year olds group

6. NFE for primary school completion group

7. Child health group

The outcomes from each group are provided below, summarising the agreed Goals, Policy Areas, Strategies and Proposed Actions for ESDF Year 1, 2009-2010.

1. Gender Group Workshop Outcomes

The gender group agreed the following Goals, Policy Areas, Strategies and Proposed Actions for ESDF Year 1, 2009-2010.

Gender GOALs: To achieve gender parity in Basic Education enrolment, promotion and completion

To improve gender parity in enrolment into Upper Secondary Schools and Vocational Education institutions

Gender Policy Areas: All girls and boys are able to complete Basic Education.

Equal opportunity for all women and men on completion of Basic Education to enrol in Upper Secondary School and Vocational Education

NSAW Target I : To expand girls’ school attendance at all levels with gradual equality with male (according to the targets of strategy laid down by the MOE)

Gender Strategy:

(1) Provide scholarships to girls from ethnic / poor families in villages where school age children cannot access a primary school

(2) Provide school development grants to rural LS/CS schools to improve school conditions and initiate activities to attract female and students from ethnic groups.

(3) Provide new school buildings and additional classrooms in poor/poorest districts where female or ethnic students, especially ethnic girls, have high drop-out rates. Construct facilities conducive to increasing female enrolment. Build dormitories and create safe environments for girls who have to study away from home

Expand boarding facilities in some provinces to reduce disparities

Build up friendly homestay family network for females to attend school

(4) Establish a student-parent association (SPA) according to Regulations of the Association (No.269/MOE/2002/21 February 2002) ensuring 40% representation of women, ethnic group representation, and 1 girl and 1 boy as student representatives

Create conditions for parents to send girls to attend school regularly particularly in rural and ethic areas

(5) Ensure new curriculum is gender sensitive with integration of ethnic cultural knowledge and gender specific information

(6) Increase enrolment of female teachers in teacher training, with emphasis on PS teacher training

Ensure teacher training is gender sensitive with integration of ethnic cultural knowledge and gender specific information

Continue to train teachers, school directors and education administrators at each level in gender roles and gender friendly environments

(7) Disaggregate data in the information system by sex and by ethnicity for the EMIS (including the TMIS) at the national, provincial, district and school level.

(8) Provide equal capacity building opportunities for women and officials from ethnic groups from MOE, PES, DEB and school staff

(9) Strengthen school networks in poor areas and scattered communities

(10) Increase dormitory capacity for women at vocational training schools and tertiary institutes

Expand boarding facilities in some provinces to reduce disparities

Build up friendly home stay family network for females to attend tertiary level education

Gender Proposed Actions: ESDF Year 1 2009-2010

(1) Finalise the Gender Education Policy including a strategy and action plan

(2) Draft guidelines for the implementation of scholarships to increase girls enrolment in primary schools, targeting girls from poor families and from ethnic groups

(3) Set the implementation targets

(4) Encourage community involvement to encourage female students to access education

(5) Develop the strategy to increase enrolment of women in teacher training

Survey to assess the effectiveness of scholarships and other incentives for women to train as primary school teachers

(6) Develop the EMIS system of data collection and analysis to incorporate data disaggregated by gender

2. Ethnic Group Workshop Outcomes

The ethnic group agreed the following Goals, Policy Areas, Strategies and Proposed Actions for ESDF Year 1, 2009-2010.

Ethnic Groups GOALs: To achieve parity in enrolment, promotion and completion of Basic Education for children from all ethnic groups

To enable ethnic students to learn in Lao language and to preserve their ethnic culture.

Ethnic Groups Policy Areas: Provide complete schools to the remote areas through Village Education Development Committee. Expand cluster school networks for professional support

Strengthen multi-grade teaching in small schools

Expand ethnic education through local curriculum

Education Policy for the rural areas

Education Policy for Cross Border communities

Lao language learning provision and preservation of local ethnic language and culture

Ethnic Group Strategy:

(1) Launch a nationwide public information campaign to encourage school enrolment

(2) Ensure that sufficient investment is made into ethnic education for research and development to provide a good quality of education in ethnic schools

(3) Train teachers in multi-grade approaches (PRE/INSET)

(4) Curriculum development

(5) Education Policy for rural areas - Strengthen VEDC through skills development and resource allocation

(6) Upgrade incomplete schools to complete schools

Community-based infrastructure projects and incentive systems to phase out incomplete schools

(7) Education Policy for Cross Border communities to make provision for the needs of children affected by cross border movement

Ethnic Group Proposed Actions: ESDF Year 1 2009-2010

(1) Conduct Ethnic Zone Survey in 2 language groups – Mon-Khmer and Hmong-Ewmain, in cooperation with Lao Front for National Construction, Linguistics Study Centre, Technology Department and other concerned agencies

(2) Re-survey existing ethnic boarding schools across the country in collaboration with Technology Department and related PES

(3) Create professional trained teachers with good quality teaching skill through TTS preservice and in-service training programs

Research and reform the teaching methodology used in all subjects

(4) Develop instructional materials utilizing the range of available media. Improve the process of curriculum development for ethnic students including methodology, content and lesson plans

Improve implementation of local curriculum and basic curriculum in ethnic schools

(5) Construct schools and prepare classrooms for enrolment of new ethnic students

3. Disabled Children Group Workshop Outcomes

The disabled children group agreed the following Goals, Policy Areas, Strategies and Proposed Actions for ESDF Year 1, 2009-2010.

Disabled Children Group GOAL: To provide learning opportunity for all children appropriate to their individual abilities

Disabled Children Group Policy Area: Provision in the education system for all children with special needs

Disabled Children Group Strategy:

(1) Expansion of ECE including provision for inclusion of disabled children

(2) Expansion of provision in Primary, Lower and Upper Secondary schools and tertiary institutions for inclusion of children with moderate disabilities – purpose built classrooms, trained teachers and learning resources

(3) Expansion of existing facilities and resources (purpose built schools, trained teachers and learning resources) for children with severe disabilities

(4) Develop regulations and decrees

Disabled Children Group Proposed Actions: ESDF Year 1 2009-2010

(1) Conduct Needs Assessment and data collection / analysis

(2) Define more clearly physically and mentally mild-moderate learning disability

(3) Define more clearly severe learning (intellectual) disabilities

(4) Develop policies and strategies

Disabled Children Group Proposed Actions: ESDF Medium Term 2010-2015

(1) Train core trainers in TEIs to integrate IE into pre-service teacher training

Train PAs in IE approaches

(2) Specialist training for teachers of visual and hearing impaired children

(3) Develop resource materials inc. braille and sign language in Lao language

4. Children of Poor Families Group Workshop Outcomes

The group discussing inclusion of Children of Poor Families agreed the following Goals, Policy Areas, Strategies and Proposed Actions for ESDF Year 1, 2009-2010.

Children from Poor Families Group GOAL: To achieve parity in school indicators between poor and less poor districts

Children from Poor Families Group Policy Area: Reduction in direct and indirect cost barriers for poor families

Children from Poor Families Group Strategy:

(1) Inclusion of students from poorer or disadvantaged backgrounds through provision of an expanded scholarships program for lower and upper secondary education

(2) Elimination of formulae and unit cost based non-salary operational grants

(3) Elimination of registration and instructional fees for students in pre-school, primary and lower secondary school, NFE and teacher education

Children from Poor Families Group Proposed Actions: ESDF Year 1 2009-2010

(1) Formulate the policy for operation of scholarships and school block grants

(2) Issue of a decree, regulations and compliance monitoring guidelines in 2009/10, with a nationwide information and advocacy campaign

(3) Define eligibility criteria and cost norms for scholarships and school block grants

(4) VEDC to undertake survey of requirements and develop a support strategy for children from poor families

(5) Develop a strategic plan for the gradual elimination of school fees aligned with the phased implementation of scholarship programs

5. ECE for 5 year olds Group Workshop Outcomes

The group discussing inclusion of 5 year old children in ECE agreed the following Goals, Policy Areas, Strategies and Proposed Actions for ESDF Year 1, 2009-2010.

ECE Group GOAL: To enhance the learning opportunity of 5 year old children in poor villages.

ECE Group Policy Area: Increased enrolment in ECE of 5 year old children from remote rural areas

ECE Group Strategy:

(1) Introduce an ECE provision to all and school readiness for 5 yr olds to access primary

school.

(2) Promoting readiness of learning to the children.

(3) Expand the number of pre-primary classrooms.

ECE Group Proposed Actions: ESDF Year 1 2009-2010

(1) Produce ECE Media

Advertising & Training for ECE to the creche in the community

(2) Develop technical level of teachers

Train the creche staff

(3) Establish pre-primary classrooms in remote areas

Teacher training

Provide teaching learning materials for pre-primary classrooms

Provide nutritious food for the pre-primary classroom

6. NFE for Primary School Completion Group Workshop Outcomes

The group discussing NFE for Primary School completion agreed the following Goals, Policy Areas, Strategies and Proposed Actions for ESDF Year 1, 2009-2010.

NFE Group GOAL: To achieve completion of Basic Education for all children, targeting out-of-school children

NFE Group Policy Areas: Enrolment in the education system of all children of school age Re-entry of out-of-school primary age children

Equivalency programs for out- of-school over-age children

NFE Group Strategy:

(1) Establish a non-formal schooling system for all school age children who have not enrolled in school or who have dropped out of school to re-enter education

(2) Public-Private Partnership policy in development of CLCs

(3) Out-of-school children will need to be captured by means of an expanded safety-net

(4) Expand re-entry programs into mainstream schooling and expanded equivalency programs for out of school students

(5) Services for non-formal education for children without payment

(6) Expand Gender Policy

NFE Group Proposed Actions: ESDF Year 1 2009-2010

(1) Development policy, strategy and non-formal education plan in all levels

(2) Create a database on illiterates, update the information system into modernisation (initiate and carry out pilot study in 2 provinces)

(3) Develop curriculum equivalency education for children - teaching and learning

(4) Development training teaching material and staff for non-formal education

(5) Establish community study center for teaching children and adults in priority areas, especially, for remote areas (initiate in 2 provinces)

(6) Identify priority areas and implement equivalency programs (initiate in 2 provinces)

7. Child Health Group Workshop Outcomes

The Child Health group agreed the following Goals, Policy Areas, Strategies and Proposed Actions for ESDF Year 1, 2009-2010 with emphasis on Nutrition Education and HIV/AIDS Awareness.

Child Health GOAL: Improved health status of all children

Child Health Policy Areas: Inclusion of life skills education to enhance the practical knowledge and competence of all children

Improvement to the Physical and Psychosocial Environment of the School

Integration of Health and Nutrition Services into Schools

HIV/AIDS awareness raising among vulnerable groups

Child Health Strategy:

(1) Education and awareness raising through nutrition education and environmental education

(2) Develop curriculum, conduct training for managers and teachers for awareness raising of environment for kindergarten, primary and secondary education teachers and TEI teachers

(3) Expand program for special students to receive supplementary high protein food and access to free health treatment

(4) ESDF Strategies developed from School Health Policy

(5) Development of appropriate and relevant curriculum for :

- life skills education

- HIV/AIDS awareness

- nutrition education

(6) Teacher training and capacity building for implementation of the curriculum and use of instructional materials including the Blue Box for:

- life skills education

- HIV/AIDS awareness

- nutrition education

(7) Advocacy, information exchange and community participation for:

- Improvement to the school physical environment

(8) Implementation, monitoring, evaluation and reporting of improvements in HIV/AIDS and nutrition education

Child Health Proposed Actions: ESDF Year 1 2009-2010

(1) Training for awareness raising of nutrition education and environmental education to all kindergarten and primary teachers.

(2) Enhance health education through improvement and editing of topics about health education and environment in the text books

(3) Training curriculum developers in awareness raising of nutrition and environment issues in secondary curriculum level.

(4) Extend the supplementary food project to cover all 47 poorest districts in the country

Annex 5.3 Models of Barriers to Inclusive Education and Corresponding Strategies

MODEL OF GENERIC AND GROUP SPECIFIC BARRIERS TO INCLUSIVE EDUCATION GIRLS

 Lack of awareness of benefits of education of women for family wellbeing

 access to LSS limited to boarding school / vulnerability for adolescent girls

 access to school facilities

- school location

- school facilities

 lack of trained specialist teachers

 lack of specialist teaching - learning materials

 gender stereotypes value education for boys

 lack of IE policy for integration of services

(MoE, MoH, MoLSW, LWU, LNF)

 lack of opportunity to access NFE equivalency

 lack of quality

 stereotype confuses disability with lack of ability to learn

 differences between the language of school and the home language

 lack of perceived relevance to life ………. (life and livelihood skills)

 inflexibility of school timing / school calendar

 no access to scholarships to meet cost of school fees, textbooks, clothes, food, boarding, transport

ETHNIC GROUPS

 remoteness / geographical location

 incomplete schools in rural villages

 cultural values / cultural diversity not reflected in the school curriculum

 opportunity cost –children need to work for household income

 value of education linked to job opportunities does not match real labour market opportunity

DISABLED CHILDREN CHILDREN OF POOR FAMILIES

MODEL OF GENERIC / GROUP SPECIFIC STRATEGIES FOR INCLUSIVE EDUCATION GIRLS

 awareness campaigns to advocate on the benefits of education of women for family well-being

 child protection measures for adolescent girls attend boarding schools eg child friendly home stay

 ensure access to school facilities for children with disabilities

- school location

- school facilities

 train disability specialist teachers

 provide specialist materials for disabled learners

 sensitisation to gender stereotypes to ensure equity in value of education for girls and boys

 IE policy includes integration of services (MoE, MoH, MoLSW, LWU, LNF)

 opportunity for out of school children and illiterate adults to access NFE equivalency program

 sensitisation to address stereotype which confuses disability with lack of ability to learn

 teachers trained to teach Lao to second language Lao speakers

 language policy for the multilingual classroom

 relate curriculum to local context focusing on life and livelihood skills

 school block grants

 flexible school timing / school calendar

 expand Schools of Quality (SoQ) concepts to all schools

 provide scholarships to meet cost of school fees, textbooks, clothes, food, boarding, transport for children who meet criteria

ETHNIC GROUPS

 mobile teachers and satellite classrooms

 multigrade teaching to complete incomplete schools

 cultural values / cultural diversity reflected through local school curriculum

 flexible school timing – to enable children to work for household income AND attend classes



 ensure education and vocational skills linked to job opportunities matched to real labour market opportunity (GENERIC)1

DISABLED CHILDREN CHILDREN OF POOR FAMILIES

1 This factor is included in the matrix as a strategy most strongly linked to the inclusion of children from poor families though in broader terms it is a strategy relevant to all children. The justification for linking this directly to children from poor families is because employment opportunity and opportunity costs of school attendance are directly correlated with socio-economic circumstance.

Generic to ALL Children

Generic to ALL Children

Annex 6i ESDF Performance Assessment Framework

1 PURPOSE

1 The Performance Assessment Framework (PAF) describes the components of ESDF progress assessment. These components relate to principles, focus, responsibilities, organisation, timing, indicators of progress, monitoring and reporting instruments, cost categories, and capacity building requirements for ESDF performance assessment. The PAF document will become the mutually agreed framework for all stakeholders to measure progress on the ESDF should this become the basis for medium term action. The reports from the performance assessment processes under the PAF may also generate the content of MOE sector reports to the rest of government.

2 The ESDF is an umbrella of policies, strategies and targets for the whole of the education sector. It is intended to be implemented through the government annual sector operational plan which will be projected forward on a five-year rolling basis1 as a medium-term strategic plan within the ESDF framework. The PAF will monitor this operational environment and provide inputs into the continued direction and priorities of the process.

3 The ESDF was developed within the frameworks of the Vientiane Declaration, the NSEDP, and Education For All. As a result, ESDF assessment will measure performance in relation to the principles, policies and higher-level targets of these documents as well.

4 In the early stages, the PAF will not have a significantly coordinated programme to monitor. In practice, however, the various PAF instruments will serve as a framework within which to assess all education investments in terms of ESDF policies, whether they are intended to achieve these or not. The PAF itself is not an instruction manual for how to conduct programme monitoring but a set of instruments to be used selectively to measure progress in areas of interest or concern.

1 At the time of PAF drafting, the 5‐year rolling plan is under discussion which will be an extension of the first ‘Annual Sector Plan’ for 09/10 which is an simple aggregation of departmental and provincial plans with budgets.

5 Similarly, in the early stage, it is hard to link the sector-based ESDF PAF with wider general or sector budget support (GBS, SBS) processes other than known triggers relating to PRSO. The common use of PAFs to determine fixed funding and performance-related variable funding will require more agreement down the line between government and development partners on programme funding modalities, and alignment with government disbursement, reporting and accountability mechanisms. Eventually, PAF timing needs to be linked with donor-investment decision-taking.

6 However, in common with GBS performance assessment, the ESDF PAF is intended to promote harmonization, alignment, reduction of transaction costs, and improvements in predictability.

7 The PAF, at this stage, is a general set of instruments for ESDF, assuming a ‘broad-front’ implementation – i.e. the ESDF is an integrated package rather than a menu of policy commitments. Because of uncertainties with regard to ESDF funding2, the PAF is likely to have to be adjusted for the actual programme of implementation and focus on what is being funded rather than the broad front. For this reason, the Policy Action Matrix (PAM), which sets out annual policy action milestones, cannot be completed until the extent of the ESDF implementable under sustainable funding is known.

8 The PAF will start as a purpose-built process to provide strategic direction to the ESDF in its opening phases. The ESDF itself proposes a heavily renovated sector performance monitoring system embedded in government, and, as time goes on, the business of performance monitoring will be taken over by government systems. However, for the medium-term, a renovated sector monitoring system of government should be regarded as an outcome of the ESDF rather than a means to monitor it.

2 PRINCIPLES

9 The PAF is driven by a number of underlying principles:

 Rationalisation: an efficient and straightforward system of collective monitoring by all stakeholders, led by the GoL, which reduces the administrative burden at all levels

 Harmonisation: a single framework for monitoring, evaluating and reporting on all GoL education activities

 Co-ordination: a single forum for stakeholder discussion of progress and assessment of follow-up measures

 Stability of resourcing: the measurement of progress in the context of longer term commitments

 Standardised measures of progress: a single agreed set of performance indicators and outcomes

 Focus on impact: progress measured by improvements in education service delivery – i.e. outcomes relating to access, quality and governance

 Linking with remedial actions: i.e. closing the circle – a complete cycle from monitoring, evaluation to remedial action. The process of the PAF is completed when recommendations arising from M&E activities are fed into strategic and operational planning

10 Development of the sector in Lao PDR through improved access, increased quality and improved planning and management is, at present, largely ODA financed and project driven, particularly at basic education levels. Procedures have involved each donor separately

2 At the start of the ESDF, the most likely scenario in sight is a mixed picture of funding – i.e. an uncertain level of increase in the state budget for education, an uncertain result, reliability or scale of funding relating to FTI submission, unknown additional finance through government mechanisms (whether SBS, GBS, pooled or project). While FTI focuses on primary (or basic) education, what will be the response of MOF with regard to other sub‐sectors, if FTI uses a sector funding mechanism rather than GBS? It is, therefore, very difficult to envisage a ‘broad‐front’ implementation of the ESDF actually taking place. Because of the inter‐relationships between ESDF policies, it is equally difficult to see how a selective implementation can occur without compromising the ESDF as a sector framework.

working, in conjunction with MOE, to identify sector needs that match donor mandates. These current procedures take the form of assistance for needs surveys, project identification missions, advisory technical assistance teams, etc.. These processes take very significant amounts of government time, at central and local levels, especially since each donor has its own feasibility, design, and PCM procedures.

11 If there is a policy shift at donor headquarters, then donor assistance in-country might rapidly move between sub-sectors – for example from basic education to higher education. This creates difficulties for MOE since funding levels are not predictable over time.

12 The ESDF is intended, within a few years, to become the framework within which the government and all donors plan their investments in the education sector. Some development partners may invest directly through the government budget with targeted activities managed by the government using regular or enhanced implementation means. Other donors may continue with project-managed funding. However, it is expected that all investments, either on- or off-budget will be directed at the single purpose of achieving ESDF outcomes. The ESDF will enable all future aid to be embedded within one integrated development framework thus providing predictability and stability of resourcing. In order to achieve this, a well-defined consultative process for all levels of education and the development partners will be needed.

13 As an instrument for tracking performance of the ESDF, the PAF inherits its characteristics, scope, and also the complications which come with these. The PAF focus will not be on individual projects, or individual government outputs but on the impacts that the priority policies defined in the ESDF are having as a whole. As a result, the ultimate objective of the PAF is to provide a collective, impact-level assessment of all investments under the ESDF umbrella, based on agreed key performance indicators, and expressed in simplified reporting mechanisms for all ESDF stakeholders. The end-result will inform modifications in strategic and future operational planning.

14 Initially, alignment of government and donors with the ESDF may be quite low and will be, to some extent, fortuitous. However, over time, there is an expectation that all GOL funding and ODA will be completely in alignment with the priority policies described in the ESDF. Monitoring compliance with the ESDF by the PAF will provide the ESWG with diagnostic information that will allow ESWG to strengthen donor and government support for the ESDF through advocacy and peer pressure to avoid failure of the ESDF.

3 ASSESSMENT FOCUS OF THE PAF

15 ESDF assessment needs are both internal, relating to the educational outcomes of the activities, and external, relating to the performance of the ESDF as a process guided by its principles.

16 The questions the PAF addresses at these two levels are the following;

 How is the sector performing in terms of its ESDF policy objectives?

 Is the ESDF on track to achieve these objectives?

 For each of these ESDF objectives, what have been the main achievements over the year?

ESDF Outcomes

 What are the main outputs that have been delivered by the ESDF over the year (based on the Sector Operational Plan)?

 What evaluations have been conducted and what results did they report?

 Should the policy priorities of the ESDF be changed?

 What operational adjustments are needed for the coming year (to be included in the next SOP)?

The ESDF as a process

 What is the proportion of financing by GoL and Donors that is directly/indirectly/not linked to ESDF priority policies?

 How strong is ownership of the ESDF by different stakeholders?

 How compliant has it been with other overarching commitments (the Vientiane Declaration, the NSEDP, and EFA)?

 How stable has sector/sub-sector financing been (GoL & Donors) over the period of the ESDF?

 To what extent is ODA finance making use of government systems of budget, expenditure, accounting, and reporting? What impact has this had?

 What is the progress towards the 16% target of public expenditure to the sector, and what has been the leverage factor of the ESDF relating to this?

 How well do actual sub-sector budget shares match those projected in the ESDF?

 What are the trends for spending on administration, sub-sector, non-salary at school level, and TA, as a percentage of ODA and what are the implications of this?

 To what extent have the ESDF consultative, collaborative, and joint assessment processes reduced the burden of donor management for government?

 What progress has been made against the ESDF gender equality, pro-poor and inclusive education principles?

17 The questions above will guide content of the Joint Review and/or Annual Sector Reports.

18 The Joint Mission Report will report at the level of the questions above. The format of the report will be agreed between the MOE and DPs.

19 However, the MOF and other levels of government will require a report on activities and achievements on the government Sector Operational Plan, including both government and project activities, inputs, and expenditures against budget lines. This requirement will be fulfilled by an updated regular reporting system and/or the Annual Sector Report, which will include the JRM report.

4 OPERATIONAL FRAMEWORK

20 The PAF is not a plan for performance assessment implementation but a framework of process and tools to be shaped to the actual context of ESDF implementation, once funding arrangements and operational planning have been finalised. At that stage, the PAF can be further fine-tuned for the specific conditionalities of the funding sources.

4.1 IMPLEMENTATION

21 The main performance assessment activities for the ESDF are expected to be:

 an annual3 joint review mission (JRM), and a process to agree, finalise and report the results4,

 a periodic technical and financial progress reporting system (bi-annual, or continuous), using government reporting systems5 (enhanced to match ESDF &

3 This is an assumption. Given the significant logistics and costs involved, it may be decided to undertake a Joint Review mission less frequently, or rely on government or project reporting for some areas.

4 While the policy formulation underlying the ESDF is determined centrally, effective implementation is dependent on compliance of the Provincial Education Service (PES) and Provincial Government with the ESDF. As a result, each annual sector review should include a field trip to a province(s) where compliance is not strong. Such field trips should include discussions with both the Director of the PES and the Governor of the Province to identify challenges, issues and suggested modifications to the ESDF.

5 Reporting is likely to become a serious challenge. Existing reporting systems will not meet ESDF assessment requirements, even if adapted, and reporting lines may have been broken by deconcentration. It is unlikely that information systems can fill the gaps in real time, especially if they are based on a traditional annual census system. In any case, information systems do not fill the needs for local diagnosis and remedial actions. If there are government‐wide initiatives (or MOF) relating to accountability and performance, then these need to be explored for early adoption in the education sector. The ESDF

stakeholder needs) which will assist the annual joint review to prioritise assessment targets.

 an annual sector report, in government report format, combining the ESDF JRM report with other ESDF and non-ESDF activities, and reported at activity, technical and financial levels, as well as the policy and outcome levels of the JRM.

 a mid-term review of the ESDF (3 years), focussing on whether adjustments are needed in policies, targets, indicators, and implementation arrangements.

22 Implementation of this will involve actions such as the following: Step Units involved Purpose

Preliminary

PAF acceptance process

(VMs, DPC, MPI, MOF, ESWG)

(VMs, DPC, DOI, ESWG)

 to agree on the function, indicators, and implementation among all donors.

PA initial setup

 stakeholder and participant briefing on the PAF scope, implementation arrangements, responsibilities, frequency, instruments (calendar, PA instruments, reporting), assignment by MOE of specialist staff to participate in the annual joint review (both MOE and PES levels)

Implementation of a progress reporting system

(MOE and PES led by DPC)

Annual Implementation

Annual initiation meetings and selection of target areas of concern

 development of revised reporting formats, agreement with stakeholders (esp. EWSG), dissemination of formats to all MOE units and PES, capacity building to implement improved reporting.

PA Mission Planning meeting

Organisation & logistics setup

(DPC & ESWG)

 to identify scope of assessment (i.e. which are the priority policy areas, areas of progress concern, priority provinces & districts, priority areas of the govt work plan, including target projects (if under the ESDF umbrella)), for the assessment period, based on progress reports to date.

Data/Information

Sourcing process

(DPC, DOI, ESWG)

(DPC, DOI, with MOE departments and PES heads)

(DPC, DOI, STEIC, SREAC, ESQAC)

 agreement process on PA mission participation, timing and budget. Request to Provinces for meetings and visits. Draft of implementation programme.

 issuance of PA mission finalised implementation programme and logistics arrangements made

 preparation of indicator data, collecting of relevant progress reports/surveys/research (govt & projects) relating to the assessment period, data classification by indicators in the ESDF M&E Matrix [B]

Joint Review (MOE (DPC,  provision of progress reports and indicator data

document (section 5) proposes an elaborate vertical performance monitoring and reporting system but this will take some time to achieve.

Step Units involved Purpose

mission orientation meeting

DOI, STEIC, SREAC, ESQAC, Govt JRM team, PES & ESWG members of joint review)

for previous periods to participating staff, briefing on scope, priorities, performance to date, and logistical arrangements

Implementation of a joint review mission

(MOE & PES units, supervised by DPC/DOI)

(DPC/DOI, JRM team)

 orientation and capacity building (in assessment skills, information collection, active participation, etc.) for national staff undertaking the review, field assessments by the JRM

De-briefing meeting

 brief verbal reports on activities & first impressions, review of report structure, agreement on analysis and report drafting responsibilities and deadlines, decisions on further assessment needs if any

Presentation of findings – 1

(VMs, DPC, DOI, JRM team leader, ESWG chairs)

 high level meeting to preview JRM team findings and resolve interpretation differences and other stakeholder differences if any

Presentation of findings – 2

(Minister, VMs, ESWG, JRM team, department DGs and Directors, MOF, MPI representatives)

 presentation of accepted findings and discussion of results. Agreement on short and medium-term remedial actions needed. Minutes listing required modifications of final report

Report distribution –1

(VMs, ESWG, department DGs and Directors, MOF, MPI representatives)

Report distribution –2 (stakeholders)

Initiation of the annual planning cycle

(DPC, MOE units)

 Submission of Draft Final report to the Minister. Subsequent discussion of Final Report and agreement on list of actions to modify the following year programme.

 regular DPC briefing on planning deadlines and formats, including ESDF remedial actions arising from the JRM.

These steps are sequenced in Error! Reference source not found., Error! Bookmark not defined.

4.2 REPORTING

23 The outcome of the process above will lead to the Joint Review Mission Report comprising the performance assessment and remedial recommendations.

24 The Joint Review Mission Report will, inter alia, contain the following sections relating to the instruments of the PAF.

The areas of ESDF policies and strategies which have been selected for performance assessment for the

An analysis of the progress against the legislative and action milestones set for the reporting year, the reasons for successful achievement and under-achievement, and the knock-on effects and implications of under-achievement.

A more detailed look at the selected policies and strategies based on progress toward the outcomes itemised in the M&E matrix. An analysis of successes and impediments leading to recommendations for future actions.

An update of the core sector indicators by subsector and an assessment of trends. This will give a profile of the sector independant of ESDF or programme inputs. [

An assessment of the specific annual programme (govt SOP, FTI) against programme level interventions and targets Standards

Summaries of Learning Assessment, Quality Assurance, and institutional inspection annual reports

M&E section 4 & Donor Profile Matrix

An assessment of how the ESDF has had an impact on the sector resource management.

25 In principle, the JRM should be less interested in progamme activity level performance. However, in practice, it is common for the annual achievement to fall sufficiently far short of the projected targets that analysis tends to drill down to activity levels for explanations. In addition, at the policy level, outcomes may not show up in the indicators for some time, leading to an impression of lack of achievement.

4.3 GOVERNMENT SECTOR ASSESSMENT PROCESSES

26 The ESDF, at the beginning, is a programme which requires substantial system accommodation in terms of perception, process change, capacity building requirements and organisational adjustment. Its origins lie in the gap between national resources assigned to education and the needs for achieving milestone education targets. This gap has to be filled by a combination of increased government allocation to education and external official development assistance.

27 As a consequence, the process of ESDF performance monitoring has multiple stakeholders and must achieve a threshold level of accountability for development partners as well as government. Therefore, at least in the first few years, ESDF performance assessment will be the purpose-built process described above, with contributions from

6 It is unclear to what extend FTI activities will be integrated into the ESDF/govt processes – i.e. whether parallel planning and monitoring arrangements will be made, and whether there will be sufficient funding sources to implement other aspects of the ESDF

regular government processes. However, a critical part of the definition of ‘alignment’ in the context of a sector-wide programme, is the extent to which planning, financing, management and monitoring processes used are those of the government. In the medium term, government processes should take over.

28 Government processes needed for a national sector monitoring capacity are;

 The government periodic/annual sector reporting process: this brings together the performance reports of educational levels, institutions and projects, aggregated as they are integrated into higher level reports. It reports on inputs, achievements and expenditures. To a limited degree, in provides indications relating to educational outcomes.

 Government specialist departmental reporting: periodic sector monitoring reports from Department of Inspection, Centre for Education Standards and Quality Assurance, Centre for Strategy, Research, and Educational Analysis, Directorate of Personnel, Research Institute ...). These provide reports relating to policy implementation outcomes, trends in learning achievement, school quality standards, and resource management.

 The government annual financial reporting process: this provides budget-unit level, and central aggregated reporting on expenditures by sector by annual plan categories (inputs, outputs) as well as on asset changes.

 The government financial control process: sample or full coverage internal audit which provides evidence of use of funds, and, if performance audit, indications of institutional expenditure behaviour

 The government sector assessment process: this brings together the evidence of the processes above, creates an annual picture of situation and trends, and draws technical, financial, policy and strategic lessons for the future.

29 In the early stages of the ESDF, government processes relating to the above are inadequate to serve effective sector monitoring purposes. Consequently, a medium-term capacity building programme for strengthening sector monitoring is included in the PAF (see Error! Reference source not found.). The programme addresses short-term capacity building requirements for implementing the PAF as a specific ESDF programme instrument. It also addresses the medium term need to transfer sector monitoring capacity into government by strengthening or reforming the processes, organisational arrangements, and staff capacities relating to building a government system of performance monitoring which can absorb ESDF PAF needs in the longer term.

4.4 RESPONSIBILITIES

30 Sector performance assessment is not the responsibility of one unit alone7. There needs to be overall coordination of the process, especially in producing an annual sector performance report, but the technical components of the report must be produced by the technical departments responsible.

31 The components and present assignment of responsibilities are indicated in Figure 1: Sector Monitoring Components below.

7 In Lao PDR, the formal assignment of responsibility for ‘Sector Monitoring’ has been given to the Department of Inspection Management. However, ESDF policy actions not only cover a modernisation of the concept of inspection, but also a reform of the sector monitoring system itself.

32 Responsibilities for the implementation of the PAF process described in 4.1 above are outlined below.

Level/Unit Responsibilities

The Minister and Vice Ministers of Education

Initiation, issuance of instructions, delegation of responsibilities, chairing and high-level coordination, decisions on outcomes and remedial and other follow-up actions ..

Standardisation of processes, indicators and reporting formats, PA planning (timing, size of mission, frequency, budget and funding arrangements), the assessment programme (including agreement with ESWG on priority areas of assessment (activities/indicators/locations), coordination with stakeholders, organisation of assessment missions (including logistics arrangements with line departments and Provinces), briefing of, and arrangements with PES, coordination with government led, and project-led M&E activities, coordination and consolidation of analysis and reporting (formats/timing/length/distribution/review and finalisation process), organisation of stakeholder discussions for results assessment, issuance of PAF reports, proposed revisions of PAM, or ESDF targets or contents

The Inspection Department (DOI)

The MOE service departments (STEIC, SREAC,

The overall coordination of the process of sector monitoring , and the organisation of field monitoring at provincial level and units under the MOE. The implementation of sample school inspection & collation of inspection reports. The coordination of the consolidated sector report (?).

Policy monitoring (SREAC), indicator servicing (STEIC), academic performance monitoring (ESQAC, RIES), quality assurance monitoring (ESQAC), information provisioncollection, analysis (STEIC), and technical report presentation, and financial performance of ESDF. Participation in the finalisatio of the consolidated sector report.

MOE DPC

Figure 1: Sector Monitoring Components

Provision of sub-sector assessment reports. Preparation of activities under departmental responsibility for assessment missions (assistance with logistics (with DPC), staff availability, site visits, liaison with counterparts in at provincial and district level (with DPC), information provision (periodic progress reports from different levels and units), subsector discussions on assessment results

Provision of provincial and project-level monitoring and assessment reports. Assessment missions, provision of progress reports as required by government, availability of staff, discussions on assessment results and interpretation, participation in assessment missions at local level

Participation arrangements, identification of priority assessment areas (activities/indicators/ locations), timing, logistics, representative participation in assessment missions, agreement with MOE on arrangements, provision of supplementary assessment funding if needed, contribution and support for analysis and assessment reports, agreement on remedial actions, implications for future actions ..

4.5 INSTRUMENTS

33 The instruments of the PAF are designed to provide multilevel and targeted performance monitoring. It is unrealistic to expect that the entire sector can be monitored for all policies and strategies every year. Consequently, review missions will select target areas of interest and concern and and apply the instruments to those areas.

34 Some of the instruments are very extensive, especially the M&E matrix. However, selective targeting of areas for monitoring and rational distribution of responsibilities for monitoring will mean

35 The instruments used in the implementation of performance assessment are;

 TABLE A: Policy Action Matrix – this provides the policy-level milestones relating to ESDF policy implementation and will is the core instrument for the overall assessment of ESDF at the policy implementation level. Two levels of milestone are given –legislative, and annual actions (Figure 2). It is expected that a section of the JRM or ESDF annual reports will summarise achievements at this level. Responsibility for policy monitoring lies with the SREAC who will therefore have the lead responsibility for maintaining this Matrix.

 TABLE B: M&E Matrix – this is the core of the PAF, establishing the standardised assessment criteria for policy, strategy, and programme level outcomes. This lays out the policies and strategies of the ESDF in terms of outcomes, and describes the indicators for each, baselines where available, information sources, responsibilities for the indicators, analysis criteria, data availability, and timing. It allows the ESDF to be assessed, and reported on, at three levels – policy, strategy, activity (if required) – and

ESQAC, DOF)

The MOE line departments

The PES

The ESWG

Figure 2: The Policy Action Matrix

can be used to select and target specific areas (Figure 3). The M&E matrix is not the responsibility of any single unit but spreads across all implementing units.

 TABLE C: Reporting Matrix – this lists the key planning and reporting documents of the ESDF, indicating the level at which they plan or report, responsibility for reporting, report recipients, and timing.

 TABLE D: PAF Annual Process Chart – the annual process of PAF activities (preparation, JRM, analysis, reporting, feedback to planning). This diagram will assist in planning the annual events for performance assessments. The DPC has overall responsibility for the PAF process.

 TABLE E: Capacity Building for M&E/PA – activities being undertaken or needed which will improve GoL performance assessment capacity.

 TABLE F: Development partner ESDF alignment matrix – this Table profiles the modalities of ESDF involvement of each development partner and the degree of alignment between ESDF principles and donor practices. The DPC has overall responsibility for reporting on this matrix.

 TABLE G: Core Indicator Reporting Matrix to be maintained for the PAF – this Table itemises indicators by sub-sector to be maintained and reported on against the baselines and annual targets. This gives a snapshop of sector trends independant of, and not orientated towards deliberate interventions. The STEIC has the responsibility for maintaining the core indicators matrix and providing annual updates

Figure 3: The M&E Matrix

1 INTRODUCTION

1.1 OVERVIEW

1 The ESDF preparation plan is designed to prepare government units for implementing the ESDF. The reasons such a plan is necessary are;

 government units need to be prepared for the substantial and relatively rapid increase in activities and resource management that ESDF implementation will bring.

 the ESDF policies and strategies need to be better known and their implications fully understood, adapted to local circumstances and sequenced before implementation can begin.

 government managers need to be prepared to lead their own responsibilities for ESDF implementation in the sector. This not only includes being able to explain the ESDF to others, but also to assist in building the capacity of implementing units involved in their areas of responsibility.

 government systems of resource management, monitoring, and reporting will need to perform well early in the ESDF implementation process. Weaknesses in these processes need to be addressed early.

2 Without good preparation, there is a risk that implementation bottlenecks will impede progress. This is an avoidable problem. The preparation plan therefore (in Stage One) targets ESDF awareness and understanding, core skills and knowledge preparing and enabling managers to lead and monitor implementation, and capacity building skills for leading agencies to support other implementing units at central and local levels.

3 Stage Two of the plan implements a series of capacity building and organisational strengthening activities prepared by the leading agencies in Stage One. For most of the activities, staff of the government lead agencies are themselves the capacity builders for the Stage Two.

1.2 ESDF DEVELOPMENT

4 The Education Sector Development Framework (ESDF) for Lao PDR has been through a development phase which has culminated in the signing of the document by the Prime Minister and accession to the FTI in April, 2009.

5 The development phase resulted in an ESDF document which describes the main education sector policies and priorities of the Lao government, and outlines a series of strategies (policy actions1) to achieve the policy outcomes.

6 The ESDF itself has been supplemented by a number of studies which have explored implications of the ESDF relating to institutional strengthening, human resource development, and inclusive education. These studies resulted in recommendations which are intended for consideration in the formulation of implementation plans.

7 Following the development phase, the ESDF has entered a transition-toimplementation phase. The main activities of this phase are;

 reorganisation of ESDF management (government & development partners) to include greater focus on implementation.

 mobilising and orientating the main funding sources towards ESDF as the umbrella framework for investment.

 organisation of sector funding to be channelled through government budget mechanisms in order to fund ESDF activities.

 development of ESDF implementation monitoring tools in preparation for implementation – i.e. the Performance Assessment Framework (incorporating the Policy Action Matrix, and Monitoring and Evaluation Matrix).

1 For the purposes of this document, the terms ‘strategies’ and ‘policy actions’ are synonymous.

 development of an ESDF Preparation-for-implementation Plan to prepare both individuals and units to implement the ESDF (this plan).

8 The Implementation Phase itself will begin when the government annual and rolling sector operational plan receives an injection of sustainable funding from the MOF permitting significant government-led, and ESDFdefined activities to be implemented. Whether this final phase is achieved depends on a number of assumptions outlined below.

1.3 ASSUMPTIONS

10 The ESDF is in the transition phase from development to implementation. However, implementation itself rests on a number of assumptions; i.e.

 the majority of donor-lenders, especially those which provide significant financing for the education sector, accept the ESDF, and its implementation proxy, the government sector operational plan, as the focus for support.

 significant funding, channelled through government, will be available to implement the 2010/11 government sector operational plan. This may come under a different heading (e.g. FTI, General Budget Support, Sector Budget Support) but will, in terms of the content framework, be directed at aspects of the ESDF related to the funding purpose.

 if funding comes through external sources via the government budget, it will allow a balanced implementation of ESDF priorities – i.e. ear-marking for big spending activities does not dry up funding for ‘softer’ items, or ear-marking for primary education does not prevent funding of other subsectors2.

 the government sector operational plans will rapidly reflect increased funding for government targeted, government-led and government-managed activities following and ESDF implementation strategy, and a significantly reduced reliance on projects to implement improvements.

2 A PRSO trigger for 2010 is that the government ‘implements the ESDF’. However, it is not clear what this means in practice. Does it require the government to move forward on all ESDF policies – i.e. on a broad front? The opening scenario of ESDF is a mixed picture of funding – i.e. an uncertain level of increase in the state budget for education, an uncertain result or scale of funding relating to a forthcoming FTI submission, unknown additional finance through govt mechanisms whether SBS, GBS, pooled or project. While FTI focuses on primary (or basic) education, what will be the response of MOF with regard to other sub‐sectors, if FTI uses a sector funding mechanism rather than GBS? It is, therefore, difficult to envisage a ‘broad‐front’ implementation of the ESDF taking place at start‐up. Because of the inter‐relationships between ESDF policies, there is also a risk that selective implementation may compromise the ESDF as a sector framework. There are still many unresolved issues relating to ESDF start‐up.

9 Figure 1 provides a simplified illustration of this process. The red/dark boxes represent the role of the ESDF preparation plan.

 where project-based implementation processes continue, the MOE and PES will develop mechanisms for improved targeting or redirecting of project activities so that they are part of the strategies and sequence of activities for implementing the ESDF.

 funding allocation takes into account the government capacity to absorb and does not become preoccupied with underspending at the expense of sensible planning.

11 The ESDF preparation plan invests in improving government knowledge, skills, organisational adjustments needed to implement ESDF policies and strategies, and has to assume that the means and environment to do this will be enabled in the short term. At present, however, there is relatively little activity undertaken outside projects and managed by government units. De-projectising government plans through significant increases in government managed funding in the major sub-sectors, is a key early strategy for ESDF implementation.

12 Developing capacity building and organisational adaptation plans creates expectations among implementing units. The environment of the transition stage has not clarified whether or when funding will be channelled into the ESDF, a sub-set of ESDF policies, or an alternative framework. Neither is there certainty of funding for the preparation plan implementation itself.

13 If these uncertainties remain, the ESDF preparation plan will seem to have been misdirected. This environment will need to change for the ESDF plan to become viable.

2 THE PREPARATION PLAN CONTEXT

2.1 PURPOSE

14 The ESDF Preparation for Implementation Plan (ESDF PP) combines the two main requirements of ESDF start-up;

[A] capacity building for ESDF implementing units – in effect, all units – to understand the policies and strategies of the ESDF, their own roles and responsibilities in implementing aspects of the ESDF, and how to translate these responsibilities into action plans for the short and medium term.

[B] institutional and organisational adjustments needed to implement ESDF effectively.

15 When the term ESDF Preparation Plan is used in this document, it refers to both capacity building and institutional change. The two have been combined into one concept because, where organisational change or reform3 is involved, it is inseparable from capacity building support activities – i.e. organisational change in government does not happen unless supported by capacity building for the change – and because process change, which is the most significant management change requirement of the ESDF, involves a package of activities relating both to organisation and capacity.

16 The development phase of the ESDF occurred largely in 2008, and involved a subset of staff in the education sector. During the development of these preparation plans, it became evident that there is a need to spread awareness of the ESDF and deepen understanding of the intentions of its policies and strategies.

17 The initial concept of an ESDF Preparatory capacity building and organisational change Plan made some assumptions with regard to the state of knowledge and commitment to the ESDF by implementing units. Because of a weaker than expected foundation, the main initial objective of the ESDF Preparation Plan will be to address this problem.

18 During the development period of this ESDF preparation plan, the MOE, with the assistance of ADB ESDF TA, put together its first sector operational plan as a PRSO trigger

3 The term ‘organisational change (or adjustment, adaptation)’ has been preferred to ‘institutional reform’ for a number of reasons. It matches the scope and freedom of action (relating to institutional change) of a single ministry better, the ESDF does not itself envisage institutional ‘reform’ except through a series of steady service improvement activities over time, and, except in very rare cases, ‘reform’ is a complex process usually beyond the capacity of a sector without wider government movement. The wider dependencies associated with ‘reform’ are too unpredictable at present for a preparation plan to prepare for.

condition, with the broad summary tables of the ESDF being used for FTI accession. The first draft of this plan has revealed that the majority of activities declared under departmental headings are project managed, project delivered, and project funded. The lack of investment funding has also concentrated government management on recurrent budget management, particularly relating to teachers.

19 This has a number of implications the most relevant of which, in terms of ESDF preparation, are;

 the present education management system and staff are largely unused to preparing for, planning, managing, or monitoring substantial educational resources under government systems4,

 many departments have not had to lead their respective areas of responsibility beyond participating in project activities. Projects have acted as de-facto implementers and coordinators. Though the integration of some project programs into activities under departmental management has kept government management active to some degree, full responsibility from the planning to the outcomes is still relatively limited.

20 This, in turn, presents a double challenge which makes a preparation programme a priority, whether for ESDF as a broad front of activities, or a partial implementation under the FTI umbrella – i.e.

 there is a need to prepare managers to take on increased direct responsibility for major implementation activities under government systems, whether through planning, managing, or monitoring.

 and, at the same time, there is a need to strengthen the capacity of managers to lead and build the capacity of implementing units under their areas of responsibility

21 These two objectives form the basis for the preparation plan. As a result, it is a simple plan. It provides a straightforward framework for managers, collectively, to work out what the government has signed up to, acquire ownership of it, decide how it can be implemented, and strengthen key skills and knowledge needed for to implementation – and then, to assist subordinate and partner units to prepare for implementation.

22 It is, therefore, government education managers who make their own plans to implement the ESDF to meet the objectives and targets set down. The preparation plan provides a guided and supported opportunity to do this.

23 The plan does not extend to capacity building and institutional changes needed to implement ESDF policies themselves. That is the business of the ESDF over the medium term.

24 It is intended that the programme of activities that the plan contains will be implemented in the fourth quarter of 2009 should funding be available.

2.2 PLAN OVERVIEW

25 The plan is founded in the immediate post-development phase context – i.e. it begins with the state of knowledge and attitudes of implementing units towards the ESDF.

26 This context is characterised by;

 a lack of knowledge about the ESDF purpose, particularly at provincial and local levels, but with significant gaps at central level also,

And government systems in education are not themselves geared towards managing substantial investments.

4

 a lack of detail at all levels about ESDF policies, issues, choices, preparation needs and how to develop implementation plans,

 substantially projectised government work-plans, and limited management of government investment resources,

 considerable knowledge held by lead and implementing units of the issues, needs, and challenges throughout the system

 a need to assign responsibilities for ESDF strategy implementation to government units,

 a need formally to fit ESDF implementation into organisational TOR,

 a need to find solutions appropriate to government structure for ensuring the inter-unit coordination necessary for ESDF policy implementation,

 a need to develop a clear management, monitoring and oversight role for lead agencies,

 as part of this role, a need for the lead agencies themselves to become the main capacity providers

27 Addressing these start-up conditions requires a two-stage solution (see Figure 2). The first stage of activities is directed at;

[A] preparing ESDF policies and strategies for implementation – i.e. it will ensure that lead agencies at central and provincial levels understand the ESDF itself in detail, and breakdown the policies and strategies into their expected outcomes, linkages with other policies and strategies, legislative requirements, issues, adaptation needs, phasing and sequencing, and implementation responsibilities – thus strengthening ownership over it. This process will also need to address issues relating to lack of clarity, and real prioritisation of ESDF policies and strategies in terms of sequence and affordability.

[B] strengthening key sector management enabling skills in preparation for leading ESDF implementation – e.g. strategic and operational planning, legislation drafting, sector monitoring processes and networks (i.e. policy implementation monitoring, standards and quality assurance monitoring, learning assessment monitoring, institutional inspection, programme and resource management), assignment of responsibilities for ESDF processes, programme coordination and management5, sector analysis and reporting, organisational analysis, organisational change management, human resource management (with special reference to teacher deployment), training programme preparation and training techniques (capacity building skills). The focus of the strengthening activities will be on the specific requirements of the ESDF, especially those which are less familiar to education managers.

5 This refers to the management of major government activities such as construction, block grant management, or scholarship management. It does not imply that ESDF should have special programme management arrangements using PIU/PMU/PCU – though this may be considered by the government.

[C] providing a framework for leading agencies, as part of their management roles, to predict capacity building and organisational change requirements needed by all (partner and lower level) implementing units to be able to implement the ESDF, and prepare a preparatory programme to address these needs, including training and guidance material.

28 These first stage activities enable the second stage to take place. The second stage is directed at preparing all units for ESDF implementation. Second stage activities will consist of lead agencies carrying out the ESDF preparation capacity building and organisational adaptation plans for all implementing units. Second stage activities will address the following needs;

 ensuring a widespread knowledge of the ESDF policy framework and implementation strategies,

 ensuring that responsibilities for implementing the strategies and the communication processes needed are well understood,

 ensuring that all organisations have the legal mandate to undertake their responsibilities,

 ensuring that key technical competencies, systems and processes needed for actual implementation are strengthened.

29 The content of these second stage capacity building, process and organisational strengthening activities will have been identified in stage one, and necessary input materials into working sessions and workshops also developed. However, the ESDF preparation plan will provide checklist considerations to be used during stage one activities to design stage two.

30 A key principle of the preparation plan is that the leading agencies of government are the main capacity building source for ESDF implementation. This is appropriate for a programme mode of implementation, and in accordance with the revised roles and responsibilities of the MOE and provincial authorities following deconcentration. In general, the MOE no longer implements education directly, but is responsible for oversight, educational content, monitoring and sector assessments of progress and issues.

31 Because awareness of ESDF is still uncertain even among leading agencies, the Stage ONE activities will ensure that they have the ability to lead the rest of the sector preparation. In order to support this process, national and international consultants will be needed selectively to facilitate, provide technical inputs, and assist in capacity building materials development.

3 CONTENT

32 The ESDF cannot be treated as project implementation where almost all activities are supported by external funds6. In principle, it is the main business of the education sector from the 2009/10 academic year. While the ESDF preparation programme is a special capacity building programme run with external assistance, it is designed to update and orientate the regular work of government units towards implementing ESDF policies. Much of the initial stimulus activity may occur in workshops, but the bulk of the work will be done back in offices or in the field.

3.1 SELECTION, PRIORITISATION AND GROUPING OF KEY POLICIES, STRATEGIES

33 The focus of the Preparation Plan is on the capacity and organisational change needs of units in order to be able to plan for, manage and implement ESDF policies. However, some ESDF policies and strategies need more preparation than others for a variety of reasons, some are sufficiently familiar as to need no extra attention, and some will continue to be

6 This is particularly true since ESDF implementation will require a significant increase in GoL funding for recurrent expenditures.

implemented under project management in the medium term and can be left for project supported capacity building.

34 Because of the way the ESDF document is written, there is no definitive solution for classifying the policies and strategies. The M&E Matrix in the ESDF Performance Assessment Framework, and the listing given in ANNEX 1 List of ESDF Pillars, Policies and Strategies organize them into a clear set of groupings, with inevitable overlaps since some policies and strategies serve more than one Pillar.

35 All ESDF policies and actions are stated as ‘priorities’ in the document – i.e. as very important to the education sector. There is no discussion with regard to priority choices – i.e. which of the ‘priorities’ are more urgent either in terms of sequence or affordability. This is an important missing element for ESDF preparation purposes since it impedes targeting of capacity building.

36 For implementation purposes, issues relating to clarity, linkages and priorities of ESDF policies and strategies need to be sorted out. Strategies are interlinked and prioritised through explicit conditions (e.g. block grants with abolition of fees), or implicit (e.g. the relationships & dependencies between education minimum standards, curriculum change, textbook revision, and learning assessment). Consequently, for preparation planning and capacity building, an analysis of the implications of policies and strategies needs to clarify their scope, categorise these according to dependencies and linkages and examine them as groups of related actions rather than separate policy actions. (See ANNEX 2 Selected ESDF Policy and Strategy Groups).

37 The policies and strategies of the ESDF can also be classified according to the degree of change they represent over the existing situation. Those that are extensions or enhancements of existing actions will require less capacity building than those which represent new directions, require new processes, skills, or organisational changes. Moreover, the ESDF proposes several ‘leverage’ policies7 which are intended to bring about significant changes in the sector. These need careful analysis for implementation purposes.

38 Furthermore, though the ESDF (and SWAp programs in general) is fundamentally concerned with re-empowering government units to manage education through government systems, certain sub-sectors, parts of sub-sectors, and areas of the country, will remain dominated by project funding and management8 for the foreseeable future.

39 Consequently, for preparation purposes, the grouped policy actions have been prioritised according to the degree of innovation and change they imply, and the extent to which they will need to be managed by government rather than project systems. The preparation programme will not need to cover all in the same level of detail.

40 Clarification, prioritisation9, and sequencing of ESDF policies and strategies can only be done by government senior managers. Stage One of the preparation programme provides senior education managers with the opportunity to undertake this process.

3.2 STAGE ONE ACTIVITIES

41 Stage One activities are outlined in the Figure 3 below. It is sequenced in three substages;

 ESDF Basics: providing an overview of the purpose and contents of the ESDF

 ESDF enabling skills: directed at developing overall sector management and monitoring capacities

 Capacity development skills: directed at strengthening training and materials development capacities of leading agencies to conduct or organize key capacity building activities for other, particularly local, units.

7 Most notably the use of block grants, and the introduction of progressive promotion. Other policies relating to teacher management are clearly ‘leverage’ policies but are adjustments of existing practices and, in practice, many not turn out to be ‘leverage’ because they cannot be implemented without significant compromise.

8 In particular, TVET.

9 i.e. relating to affordability and sequencing

Lao PDR ESDF Sector Study: Final Consultants’ Report - Annex 6ii

42 The follow-up programs described extend the activities into the Stage Two programme for implementing units at local levels.

43 The programme is described in detail, including activity content, resource requirements and timing in ANNEX 3 Stage One Activity Matrix.

ESDF Preparation for implementation Stage ONE

To ensure that all leading agencies are aware of the purpose and content of a sector programme

DPC SREAC, DPO Support TA

DPC

All MOE Depts & Centres Support TA

A workshop series to understand the key ESDF strategies in detail and make a CB plan for implementing units

DPC, SREAC DOF, DPP, DSE, CEWED, TVET, others Support TA

ESDF Basics

Preparatory working sessions

WORKSHOP ONE

The ESDF

Preparatory working sessions

WORKSHOP TWO Key ACCESS Strategies

DPC, DOEI SREAC, DPO, DPP, DSE, TVET, others Support TA

DPC, DOEI SREAC, ESQAC, STEIC, DPO, DPP, DSE, others Support TA

For technical groups to undertake specific skills capacity building followed up by on‐the‐job ESDF preparation

Lead experts of technical groups Support TA

DPO

Staff identified by the preparation team Support TA

Staff involved with legislation drafting and approvals processes Support TA

DOEI, SREAC DOEI, SREAC, RIES, ESQAC, STEIC; DPC, DOF Support TA

This workshop prepares for the five follow‐up session on the next page. They are all related to developing a sector monitoring system

WORKSHOP THREE Key QUALITY Strategies

ESDF Overview (DPC)

Selection of key Policies & Strategies for analysis for Workshop 2 (SREAC)

Unit Responsibilities for ESDF & Sector Programme Mechanisms (DPC/DPO)

Regional sector programme experiences (DPC)

Block Grant and Abolition of fees (DPP)

Progressive Promotion (DPP)

Pro‐poor scholarships & subsidies management (DPP)

Support policies for remote schools (DPC)

Preparation of CB programme for implementing units

Standards, curriculum, textbooks and learning assessment reform

Teacher demand planning & Teacher recruitment and deployment systems

School and student performance monitoring

Preparation of CB programme for implementing units

Planning & Information Systems strengthening

WORKSHOP FOUR Key MANAGEMENT Strategies

ESDF Enabling Skills for Leading Agencies

Preparatory working sessions

Legislation Preparation WORKSHOP (FIVE)

Legislation Development Follow‐up programme

Sector Monitoring Strengthening WORKSHOP (SIX)

(continued next page)

Legislation and regulations for revised staff functions

Sector performance monitoring

Preparation of CB programme for implementing units

Preparation ofthe agendas, outcomes, draft follow‐up programme, and materials for the technical sessions

Assessment of legislative requirements (provincial & central) of the ESDF

Review of legislation drafting process & identification of responsibilities for each piece of legislation required Legislation & drafting plan for ESDF legislation milestones Training in skills & processes for legislation drafting Applied practical session drafting two real pieces of legislation

Completion of legislation needed for 2010/11 PAM milestones

Development of an SM ‘system’ and processes, including agreement on responsibilities for SM components

Development of an integrated sector reporting mechanism and reporting formats

Establishment of an SM technical coordination mechanism to produce component and consolidated reports

Development of implementation plans to establish or strengthen SM component networks (Policy Monitoring, QA, Inspection, Learning outcomes, Sector trends)

Figure 3: Stage One Activities

SREAC, DPC PES

Support TA

Lao PDR ESDF Sector Study: Final Consultants’ Report - Annex 6ii

Policy Monitoring

Follow‐up programme

These follow‐up programmes extend the activities into ‘Stage Two’ ‐ i.e. They cover capacity and organisational preparation needs at local levels as well

ESQAC, RIES

DPC

PES

Support TA

Quality Assurance Monitoring

Follow‐up programme

DOEI

Sector Monitoring Network

PES

Support TA

Inspection & Compliance Monitoring

Follow‐up programme

Development of a provincial policy monitoring process & network

Development of core policy monitoring documentsto support the process

Training in policy monitoring and performance reporting for the provincial network (Stage Two)

Development of a provincial quality assurance process and network

Finalisation of standards for schools, and plan for development of remaining standards

Development of core quality assurance monitoring

documents to support the process

Development of a realistic QA strategic programme

Training in Quality Assurance monitoring for the provincial network (Stage Two)

A strengthened sector monitoring coordination function

Formation of a mandated technical group for sector monitoring consolidation

Identification of compliance monitoring elements of ESDF policies& a process to sample compliance

Training in sector monitoring coordination processes

Training in policy compliance monitoring (Stage Two)

External training for selected expert staff in the sector monitoring network (all units involved)

Operationalisation of the consolidated sector reporting mechanism for the 2011/12 academic year

ESQAC & RIES

Key members of ESQAC, RIES, DPP, DSE, DTT, PES (to be identified)

Support TA

Learning Assessment

Follow‐up programme

DOEI and STEIC

Members of the sector monitoring technical network

STEIC staff

Selected PES staff

Support TA

Sector information sourcing & trends analysis

Follow‐up programme

Agreement on a realistic national system and processes to monitor learning outcomes, for learning content, assessment processes, and learning outcomes.

Assignment or clarification of responsibilities for the above at central, institutional, and provincial levels.

Agreement on information sourcing and reporting covering the aspects above.

Training for annual learning assessment reporting

Development and agreement on standardised non‐programme based KPIs for sector profiling

Assessment of information servicing for the PAF indicators

Adjustment of data content for EMIS where needed

Agreement on KPI reporting formats for consolidated sector monitoring

Training in provincial information servicing for sector monitoring (Stage 2)

Development of a sector monitoring publishing service for sector trends

Design of a revised system of strategic and operational planning for ESDF

DPC

All MOE units

Selected PES planning representatives

Support TA

ESDF Planning system WORKSHOP (SEVEN)

DPC

All central and Provincial planning staff

Staff with responsibility for financial planning and budgeting

Support TA

ESDF Planning

Follow‐up programme

Development of the medium‐term rolling plan formats, content headings, and contributing processes

Provincial planning integration & alignment process

Medium term financial planning & operational plan budgeting processes and techniques. Preparation of a training plan for key staff.

Preparation plan for building the system, Improving project alignment mechanisms

Implementation of the ESDF Planning system development programme

Development of preparatory planning templates, guidelines, draft plans, Capacity building for all levels

System setup / Training / Draft 2010‐11 plan

(continued next page)

Technical workshops for strengthening capacity building skills & training materials development

Lao PDR ESDF Sector Study: Final Consultants’ Report - Annex 6ii

Capacity Building skills development

DPO

DPO supported by National capacity building specialists Support TA

Preparatory working sessions

DPO, DPC All leading agencies

Support TA

Organisation of Capacity Building, and CB skills development WORKSHOP (ELEVEN)

DPO, DPC

All leading agencies

Support TA

Organisation of Capacity Building, and CB skills development

Follow‐up programme

ESDF Preparation for implementation Stage TWO

Reorientation of provincial & district programmes towards ESDF

DPC SREAC, DPO Support TA

DPC

All MOE Depts & Centres Support TA

ESDF Basics

Preparatory working sessions

REGIONAL WORKSHOP SERIES

The ESDF

Preparatory working sessions

Preparation ofthe agendas, outcomes, draft follow‐up programme, and materials for the Workshop and follow‐up programme

Review of the consolidated CB programme from Workshop 9. Identification of materials needed or available. Finalisation of the programme including sequencing, locations, participant numbers, financing arrangements

Training methods: workshop organisation & management, participatory techniques, presentation preparation, use of training materials, case‐studies and problem solving, simulation, on‐the‐job training & support, training assessment Finalising a CB skills development follow‐up programme

Programme to complete remaining materials

2 cycles of practical skills development workshops (25 participants from leading agencies) on: workshop organisation & management, presentation & training skills, interactive & particatory training, case‐study and problem solving techniques, using the CB programme as target material

PES & DEB awareness raising for ESDF (purpose, policies, strategies, implications, future directions)

ESDF policy and strategy analysis & implementation implications

PES & DEB Unit Responsibilities for ESDF activities

Organisational change and capacity building programmes have been prepared by leading agencies in Stage One

Led by different units

Participation on need

DPC, DPO Participation by strategy training need Support TA

Policy‐based capacity building

WORKSHOP ONE

Organisational Strengthening for ESDF implementation

WORKSHOP Two Training for ESDF Strategy implementation

Implementation of prepared organisational change plans

Integration of ESDF processes into unit TOR

Training for revised TOR

Unit strengthening (VEDCs, DEB & PES structure)

Implementation of training packages for units by policy requirement prepared by leading agencies

Training for ESDF planning & management

Figure 4: Stage Two Activities

3.3 STAGE TWO ACTIVITIES

44 Stage Two activities are outlined in Figure 4 above. Details of the programme content will be determined during the phase one activities.

45 While two of the objectives of Stage One are to generate the content of Stage Two, and prepare leading agencies to lead Stage Two, it is possible to predict some of the requirements for capacity building and organisational adjustment for Stage Two. ANNEX 3 Stage One Activity Matrix indicates the follow-up programme for key Stage One workshops and lists also the Stage Two activities involved.

3.4 IMPLEMENTATION MODALITIES AND COSTS

Preparation Programme Management

46 Overall responsibility for the programme will have to be decided by the MOE within the framework of the organisation for ESDF coordination. For the transition and implementation phases of the ESDF, the government has reorganized the ESDF coordination structure and the ESDF Focal Groups and Task Forces (see ANNEX 6 ESDF Coordination Structure). Responsibility for the preparation programme will be located under the DPC and central coordination group.

47 All TA assigned under the preparation programme will be coordinated by, and report to the DG DPC10. If the present ESDF support TA continues, then the TA should form part of this team with coordination and reporting shared by the DPC and ESDF Team Leader. TA team mission timing, duration and performance will likewise be the responsibility of the DG DPC, assisted by an ESDF Team Leader. In turn, the DG DPC will inform the ESWG and seek comments and consensus relating to matters of preparation programme implementation.

48 The Focal Group Heads will help to decide on priorities, contents and participation in the workshops and on the outcomes of the follow-up sessions. The preparation working sessions will produce a proposal, within the outlines of the Activity Matrix, for the Focal Group Heads to confirm the content, organisation, and follow-up programs of the key workshops before detailed work on the contents and materials.

49 As far as possible, the preparation programme should be designed to strengthen the regular systems of education management and delivery so that management and coordination mechanisms do not depend on Focal Group intervention but are built into the government systems themselves.

Workshops & follow-up programs

50 Stage One of the programme will be implemented through a series of key workshops followed by follow-up on-the-job activities.

51 The workshops need to engage closely with relatively small groups of specialist staff, or larger numbers of senior managers, and will need to ensure active participation and discussion. Each workshop will need to agree and prepare for the follow up activities. Consequently, the standard government method of capacity building involving mass-lecturing and limited question and answer will not be appropriate. Training in workshop management, given to key technical staff of leading agencies in Stage One, and the preparation of the stage two capacity building programme and workshop materials will ensure that the Stage Two activities are also conducted in a relatively practical and interactive manner.

52 Workshops are given an indicative duration. However, in many cases, the content and outcomes indicated are ambitious. Experience has shown that relatively limited outcomes can often be expected from workshops. There is no simple answer to this problem. On the one hand, there is lot of material to cover; on the other, it is unsatisfactory to remove substantial numbers of government staff from their regular work for long periods.

10 As the interface between government and the ESDF Coordination group under the ESWG.

53 To some extent, the follow-up programme will allow the expected outcomes to be achieved over a longer period of time. But the follow-up programs are not driven by the same time-bound performance or incentive framework as the workshops and carry additional outcome expectations. The follow-up programs carry a heavier burden of outcomes than the workshops. There is a danger that, without determined monitoring, follow-up programs will lose momentum. The support TA provided will also be responsible for assisting follow-up programme implementation, agreeing deadlines, organising working sessions, and generally pushing the outcomes along.

Technical Assistance support

The workshops and follow-up activities will, on request of government units, be supported by targeted international and national Technical Assistants. An initial estimate of TA requirements is summarised in ANNEX 4 Projected Technical Assistance Support needs, and allocated by activity in the

. At least one medium-term international and one medium-term national TA are required to assist the assigned units of government to coordinate, facilitate, and push forward the programme. All national TA time allocations are on a needs basis – i.e. day allocations may not be continuous.

54 International and national TA support will, in general, act as facilitation and sources for activity preparation by;

 defining the elements that need to be incorporated in the activity,

 ensuring adequate consideration of existing activities and programs in the sector and ESDF11,

 feeding in related information and experiences from Lao and abroad,

 arbitrating between different views,

 shaping the focus and materials for the workshops,

 giving weight and authority to support the discussion of critical issues,

 maintaining momentum in follow-up on-the-job activities,

 providing advice and support on request for these follow-up activities.

55 Where needed, the TA may also support training during Stage Two activities.

56 Because of the relatively underdeveloped ownership of the ESDF at present, all TA will need to avoid leading activities, or becoming associated with decisions or choices beyond pointing out the consequences of the decisions and actions as s/he perceives them – even if some decisions appear to conflict with the ESDF or with each other.

Costs

57 Funding for the ESDF Preparation Programme is likely to be ‘project’-based – i.e. a specially funded activity, not under the government budget, with specific and time-bound objectives. However, in order to practice what ESDF preaches, the fund should be made available to the MOE and be under MOE management, with possible joint management by an ESDF TL if in place. Exact funding mechanisms will depend on agreements between the funding agency and the MOE within the budget law.

58 Cost estimates for the programme are given in terms of;

[A] a projection for Stage One activities,

[B] a cost for Stage Two activities relating to Stage One follow-up programs,

[C] a cost for national TA

59 The full cost of Stage Two activities is not projected because it is dependent on the needs identified by leading agencies as part of their implementation assessment12.

11 e.g. the state of progress under the TESAP and the policies of ESDF relating to teacher management.

12 This is the only way a capacity building assessment can be done effectively. There is simply not enough understanding of the sequencing, prioritisation, dependencies, and baselines for implementation needs to be projected. Only the government itself can sort this out through analysis, discussion, and matching priorities with available funding.

Consequently, the total given is not the total required for the ESDF PP. A contingency needs to be available to fund the wider needs of Stage Two.

60 The cost estimates and unit costs are in ANNEX 5 Costs and Unit Costs for ESDF preparation programme and a norm-based spreadsheet. A ‘crude’ cost base has been used relating to rolled-up costs by type of workshop. It is based upon mid-2009 unit costs for all workshop costs expressed as a participant cost and multiplied by the maximum number of participants for a 2-day workshop. For projection purposes, this is deemed adequate. In practice, actual costs will be used, and funding will be in slices.

61 The total costs are projected on the assumption that most of the workshops will need to be held in ‘external’ locations13. For regional14 workshops, it has been assumed that ‘external’ premises are the norm, and that all travel from surrounding provinces is by road.

62 It is possible to reduce the cost for some workshops by using government premises. The cost calculations include unit costs for such ‘internal’ workshops is case these are needed.

63 An additional amount has been allocated for a simple external scholarship management software system for the DPC.

3.5 PROGRAMME PARTICIPATION

64 It is essential that participation in the key workshops and follow-up activities targets the correct implementing staff for the workshop topics and tasks. The tendency to send the same people to attend the different workshops, or to send the wrong level of staff will undermine the purpose of the programme.

65 Similarly, if the ESDF is the main business of government, then the workshops should be compulsory for the staff who have the responsibilities for implementing the areas of ESDF covered by the each workshop.

66 For this reason, participation must be controlled and vetted by the MOE and the ESDF Focal groups supported by the leading TA. These bodies must monitor the programme and ensure that the participant composition of the workshops and follow-up sessions is correctly distributed.

13 i.e. guest houses, out‐of‐town workshop locations, hotels

14 ‘Regional’ refers to Lao and not ASEAN! For practical purposes, Lao is divided into three regional centres where surrounding provinces come and meet together. This is the most cost‐effective way of consulting all provinces.