The ESDF Preparation Plan – outline of content

from LAO PDR 2009: Final Report

by Mott MacDonald International Development

Lao PDR ESDF Sector Study: Final Consultants’ Report - Annex 6ii

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 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

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

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 levels

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.

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

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 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

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

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

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)

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

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

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

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)

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 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

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

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

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

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

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

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

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

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

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

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

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

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

Next Article

Lao PDR ESDF Sector Study: Final Consultants’ Report - Annex 6ii

Additional outcomes

5.3 Activities during the period

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

Implementation of the PAF TOR

Implementation of the ESDF PP TOR

5.5 MOE de-briefing

5.6 Future directions relating to the TOR

Annex 1 Terms of Reference for the ADB TA Team

ADTA 4907-Lao: Sector Wide Education Sector Development Framework

National Financial Advisor (3 person months)

International Governance and Institutional Reform Advisor (4 person months)

National Governance and Institutional Reform Advisor (3 person months)

International Human Resource Management Advisor (4 person months)

National Human Resource Management Advisor (2 person months)

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

Technical Working Group composition

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

(A) Key Meetings

(A) Key Meetings

(A) Key Meetings

(A) Key Meetings

(B) Schedule of Workshops

(C) Key People Met Organisation / Department

(C) Key People Met Organisation / Department

(C) Key People Met Organisation / Department

Comments, Process & HR implications

Start Responsibilities

Comments, Process & HR implications Start Responsibilities

Comments, Process & HR implications Start Responsibilities

implications Start Responsibilities

Reference

Type of LI Comments, Process & HR implications Start Responsibilities

Comments, Process & HR implications Start Responsibilities

Reference

Proposed Drafting Action Type of LI Comments, Process & HR implications Start Responsibilities

Process & HR implications Start Responsibilities

Implications

Comments, Process & HR implications Start Responsibilities

More articles from this publication:

Lao PDR ESDF Sector Study: Final Consultants’ Report - Annex 6ii

Annex 6i ESDF Performance Assessment Framework

Annex 5: ESDF International Social Development and Inclusive Education

This article is from:

LAO PDR 2009: Final Report