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Empowering You Through Knowledge
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1
PERFORMANCE OF PUBLIC-PRIVATE PARTNERSHIPS IN DELIVERING SOCIAL
SERVICES: THE CASE OF UNIVERSAL SECONDARY EDUCATION POLICY
IMPLEMENTATION IN UGANDA
M. Barungi, J. Wokadala & I. Kasirye
Uganda Evaluation Week 2015, International Conference
Hotel Africana, Kampala, 12th – 13th March 2015
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CONTENT
Background MethodologyFindings & Conclusion
Options for policy
consideration
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BACKGROUND
GoU initiated USE policy in 2007 - to consolidate UPE gains & ensure
equitable access to secondary education for all eligible students regardless
of their socio-economic background.
Implementation of USE policy heavily relies on the partnership between
MoES & selected privately owned secondary schools – “USE PPP”
The USE PPP is largely driven by limited public secondary school
infrastructure, which would otherwise limit access to all qualifying children.
MoES chooses private secondary schools to partner with & an MoU is
signed with them to ensure that they comply with USE policy’s
implementation guidelines.
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WHY PPP IN EDUCATION SERVICE PROVISION?
1) Public funding of private schools is justified by the argument that poor students will benefit from the opportunity to enroll in private schools of superior quality than the public schools that would otherwise be their only option.
2) Contracting out education services enables Gov’ts to quickly expand access without incurring any up-front expenditures on constructing & equipping new schools.
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LOW SECONDARY SCHOOL ENROLMENT
Despite the introduction of USE, enrolment for secondary education remains low - below 30 percent.
It should be recognised that the attainment of the USE policy objective depends on how well the actors in the USE PPP press towards the goal.
Therefore, we provide insights into the performance of the USE PPP.
GER rates in secondary schools
Source: Education Management Information System 2000 -2012
0
5
10
15
20
25
30
35
20
00
20
01
20
02
20
03
20
04
20
05
20
06
20
07
20
08
20
09
20
10
20
11
20
12
GR
OS
S E
NR
OLM
EN
T (
%)
All Boys Girls
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LINK BETWEEN PERFORMANCE OF THE USE PPP & ATTAINMENT OF THE POLICY OBJECTIVE
Attributes of good PPP performance
• Relevant
• Effective
• Efficient
• Sustainable
• Participation
• Accountability
Successful implementation of the USE policy
• All stakeholders (Government, private schools, parents, etc) fulfil their mandates.
• Effective monitoring and evaluation of policy implementation.
Increased and equitable access to secondary education
• Increased enrolment
• Reduced dropout
• Increased completion
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DATA AND SOURCES
Secondary data - Education Management Information System (EMIS)
Primary data – collected in June 2013 from a survey of 61 private USE schools in Arua (11), Iganga (18), Kibaale (9) & Luwero (23).
Respondents in the collection of primary data include: Sch. Directors, Headteachers, Chairpersons B.O.Gs, & Bursars.
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DATA ANALYSIS: INTEGRATED FRAMEWORK FOR ASSESSING PUBLIC-PRIVATE PARTNERSHIPS – BY LUND-THOMSEN (2007)
The analytical framework adapted for this study is a modification of the OECD’s standard aid evaluation criteria, which assesses PPP performance, based on five criteria namely relevance, effectiveness, efficiency, impact and sustainability.
However, the integrated framework looks at Seven criteria namely: 1) Relevance, 2) Effectiveness, 3) Efficiency, 4) Impact, 5) Sustainability, 6) participation, & 7) Accountability.
During the assessment, for each criterion, the respondent is asked to discuss with examples, a set of four questions/issues.
Based on the information provided by the respondent, the enumerator, makes an objective assessment of each criterion & assigns numbers 1-3 ; where 1 =True; 2 = True but to a less extent; & 3 = Not true.
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INTEGRATED FRAMEWORK FOR ASSESSING PPPS
Criterion Discussion points
Relevance
Clarity of partnership objective(s) & whether the PPP
objectives are in line with those of the partnering institutions.
whether the PPP objectives meet the perceived needs of the
stakeholders;
whether the stakeholders are supportive to the realization of
the PPP objectives.
Effectiveness
o whether the PPP has yielded the intended objectives.
o whether the achievement of the intended objective is indeed
remarkable
o whether the PPP is being implemented as per the guidelines.
o whether the stakeholders are satisfied with the
outputs/outcomes of the partnership.
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INTEGRATED FRAMEWORK FOR ASSESSING PPPS
Criterion Discussion points
Efficiency
whether the public financial contribution is adequate
whether the private partners are using the available resources
optimally
Whether the private partners have adequate resources to enable
them implement the activities of the PPP
Impact
o Whether the PPP has yielded un-intended consequences
o Whether the PPP has co-opted stakeholders
o Whether in the PPP regulatory efforts are respected
o Whether the PPP has an effective monitoring & enforcement system.
Sustainability
• whether the PPP achievements are sustainable in the long run
• whether the PPP can financially sustain itself
• whether the organizational structures created through the PPP will
continue to exist.
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INTEGRATED FRAMEWORK FOR ASSESSING PPPS
Criterion Discussion points
Participation
whether the intended beneficiaries of PPPs
have had any influence on the design,
implementation, monitoring and evaluation of
PPP initiatives.
Accountability
o whether there are internal checks and
balances in the PPP that can be used to
guide the conduct of its participants and
enforce agreed-upon rules.
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RELEVANCE OF THE USE PPP
Nearly 77% of the Headteachers s are fully aware of the objective of partnering with MoES, which is to increase access to secondary education.
Headteachers are satisfied with the USE support in terms of capitation grant and the teaching resources.
capitation grant – received in lump sum, which enables school management to pay teachers’ salaries, expand and establish new infrastructure, and undertake other activities as per their work plans.
Non-monetary support, e.g. textbooks for mandatory subjects, teachers’ guides, in-service training of teachers, English dictionaries and pronunciation CDs, and laboratory equipment and chemicals.
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RELEVANCE OF THE USE PPP …Stakeholders are to some extent supportive to the realization of the objective of the USE policy.
Parents:
oTake and register their eligible students at school,
osome contribute to their children’s feeding by either paying lunch fees in cash or in kind,
oothers provide school uniforms and scholastic materials to their children,
omany parents voluntarily contribute towards the purchase of laboratory chemicals & apparatus, & construction of more school buildings.
Political leaders:
oSome MPs actively participate in school fund raising activities to support infrastructural developments.
oGISOs &DISOs monitor programme implementation
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EFFECTIVENESS OF THE USE PPP
About 74% of headteachers agreed that the USE PPP has yielded substantial increments in school enrolments
Contribution (%) of USE to O’ level enrolment 2007 - 2012
0
100
200
300
400
500
600
700
800
20
00
20
01
20
02
20
03
20
04
20
05
20
06
20
07
20
08
20
09
20
10
20
11
20
12
Nu
mb
er o
f s
tu
de
nts
('0
00
)
Boys Girls
17 29
38 49 55 60
83 71
62 51 45 40
2007 2008 2009 2010 2011 2012
USE Non-USE
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EFFECTIVENESS OF THE USE PPP …
Evidence of adherence to PPP guidelines e.g.
All schools had certificates of accountability
All schools had set up Boards of Governors
All schools were admitted only eligible students.
Non-compliance to some extent e.g.
oObserved that some schools were not displaying on their notice boards the funds received as USE capitation grants
oMany Headteachers admitted that they disregarded expenditure guidelines especially the allocation to teacher’s salaries
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HOW EFFICIENT IS THE USE PPP?
Inadequate public financial contribution
3/4 of the Headteachers reported that capitation grant is inadequate & has remained fixed at UGX47, 000 per student per term.
Late release of funds - some schools reportedly borrow money from either friends or banks (at high interest rate) to clear their bills.
Sub-optimal use of resources by private partners – driven by limited infrastructure
With increasing # of students enrolling, there is overcrowding in streams -number of students per stream above 60, the permissible ceiling.
Improper storage and display of textbooks, and laboratory chemicals and apparatus.
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IMPACT - 67% OF THE RESPONDENTS REPORTED THAT THE USE PPP HAS YIELDED MIXED AND UNEXPECTED CONSEQUENCES
Positive outcomes
Employment creation as a result of the need for additional teaching and non-teaching staff
Significant reduction in the cost of looking for students as well as the burden of school fees collection
Increased ease of implementing schools’ work plans – since the money comes as a lump sum
increased access to information;
ease of registration with UNEB –this is paid for under USE set up.
Negative outcomes
Poor performance in UCE exams -partly attributed to relaxed S.1 entry requirements and automatic promotion policy
Deviant behaviour among students -the law abolished corporal punishment - this has led to rampant student
Increased irresponsibility among some parents with the misconception that government USE grant caters
for all school requirements.
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IMPACT …
Disregard of implementation guidelines, especially in the area of financial management
“The school USE Bank Account shall be opened and administered by the Chair person Board of Governors and the Headteacher”
However, many Headteachers complained that the school Proprietors often hijack this role & do not spend the grant as per the approved budgets.
All schools are regularly (at least twice a year) monitored & about 78% of the headteachers reported that they receive evaluation reports as feedback from the inspection/monitoring visits.
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SUSTAINABILITY OF THE USE PPP
Sustainable achievement: Trends seem to suggests that the USE PPP is able to achieve & sustain high O’level completion rates.
Source: Education Management Information System (EMIS) 2000 - 2012
18
2325
20
28
34 33
39 3942
45
48
52
14
19 1917
22
26 25
31 31 31 32 33 34
0
10
20
30
40
50
60
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
Com
ple
tion r
ate
(%
)
Boys Girls
PRE-USE POST USE
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SUSTAINABILITY OF THE USE PPP …
Financial sustainability - sustainable flow despite being insufficient
MoFPED annually allocates funds for USE programme
Private USE schools raise additional funds through tuition fees paid by the purely self-sponsored students & other charges (e.g. development fee) that are paid by both USE & non-USE students.
Existence of organizational structures, specifically created to play an oversight role.
every private USE school had this governance structure in place to;
oensure expending of USE grant as per the guidelines and
omonitor the implementation of USE
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PARTICIPATION OF STAKEHOLDERS IN THE USE PPP
Stakeholders e.g. school proprietors, teachers, members of BoGs, & PTAs were consulted before signing the MoU.
Three quarters of the Headteachers believe that stakeholders have an influence on USE policy implementation. E.g.
S
Parents, local, religious & political leaders are usually invited to schools to make decisions regarding, e.g.
o how much fees to charge on USE students;
ohow to provide students with lunch
oorganizing fundraising functions for a particular cause
orecruitment of new staff, etc.
About 66% of Headteachers agree that teachers & parents have taken their own initiative to monitor USE PPP activities.
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ACCOUNTABILITY IN THE USE PPP
There is a system in place to guide the conduct of people or institutions participating in the partnership.
MoES (2007). Policy and Operational Arrangements for Implementation of Universal Secondary Education (USE).
Despite the existence of systems for accountability, to an extent power is abused by the school proprietors.
E.g. some Headteachers have little knowledge of USE funds received by their respective school because they are not signatories to the school USE accounts.
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SUMMARY OF OVERALL PERFORMANCE OF THE USE PPP
Source: Authors’ computations based on field survey data
66 66
34
66
35
6278
32 31
43
27
52
3019
2 3
237 13
5 3Rele
vanc
e
Effe
ctiv
ene
ss
Effi
cienc
y
Impa
ct
Sus
tain
ab
ility
Part
icip
ation
Acc
oun
tab
ility
TRUE True to an extent Not true
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EMERGING OPTIONS FOR POLICY CONSIDERATION
1
• Introduce a small new tax and earmark a portion of accrued revenue for USE implementation, with intent to gradually increase the capitation grant per USE student in tandem with changes in the cost of education inputs.
2
• Introduce consequences for disregarding the recommendations from the school monitoring/inspection report
3
• Create awareness and sensitize stakeholders about their roles and responsibilities: This will increase compliance and support towards the realization of the intended objectives of USE programme.
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I thank you for your kind attention
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