1

This action is funded by the European Union

ANNEX

of the Commission Implementing Decision on the Annual Action Programme 2015 in favour of

Tajikistan

Action Document for the Quality Education Support Programme I

1. Title/basic act/ CRIS

number

Quality Education Support Programme I

CRIS number: DCI-ASIE/2015/037-673

financed under the Development Cooperation Instrument

2. Zone benefiting from

the action/location

Tajikistan, Central Asia

The action shall be carried out at the following location: Dushanbe

and all Oblasts and Region of Republican Subordination -

(Nationwide)

3. Programming

document

MIP EU-Tajikistan 2014-2020

4. Sector of

concentration/ thematic

area

Education Sector – General Education and initial TVET

5. Amounts concerned Total estimated cost: EUR 15 000 000

Total amount of EU budget contribution EUR 15 000 000

6. Aid modality(ies)

and implementation

modality(ies)

Project Modality

Direct management - Procurement of services and supplies

7. DAC code(s) 11130 – Teacher training

8. Markers (from CRIS

DAC form)

General policy objective Not targeted Significant

objective

Main

objective

Participation

development/good

governance

☐ ☒ ☐

Aid to environment ☒ ☐ ☐

Gender equality (including

Women In Development) ☐ ☒ ☐

Trade Development ☒ ☐ ☐

Reproductive, Maternal,

New born and child health ☒ ☐ ☐

RIO Convention markers Not targeted Significant

objective

Main

objective

Biological diversity ☒ ☐ ☐

Combat desertification ☒ ☐ ☐

Climate change mitigation ☒ ☐ ☐

Climate change ☒ ☐ ☐

2

adaptation

9. Global Public Goods

and Challenges (GPGC)

thematic flagships

N/A

SUMMARY

The proposed project is designed with the aim of addressing selected national priorities from

the National Strategy for Education Development (NSED) of the Republic of Tajikistan till

2020 and the Education Action Plan 2015-2017. The 2014-2020 MIP for Tajikistan provisioned

an envelope of EUR 75 million for education, making the EU the major education donor in the

country. It is the first time that the EU supports the education sector through its bilateral funds.

The current standalone project (EUR 15 million) has to be seen as the first phase of EU support

over the 2014-2020 period, to be followed by further interventions The objective, should

context allow, is to implement the follow up projects through a significant share of sector

budget support.

This initial period will thus be used to build a platform of partnership, dialogue and

understanding in the sector in preparation for a scaling up of the implementation of the policy

reform supported through the two subsequent phases.

The overarching objective of the EU intervention in the education sector will be to contribute to

the development of a modern education system, able to prepare informed, qualified and ready

for the "world of work" citizens.

The specific objective of the current project is to support efficient and effective education

service delivery at secondary and initial TVET levels in order to improve learning outcomes.

During the initial phase the Project will provide support in four areas:

1. A modern, viable and competence based teachers' Continuous Professional Development

(CPD) system, better responding to teachers' needs and built on successful national and regional

experiences is developed and piloted for secondary school teachers in selected regions.

2. A modern and viable TVET teachers’ CPD system, better responding to teachers’ and

Lyceums managers’ individual needs and built on successful national and regional good

practices is developed, piloted and embedded.

3. A National Learning Assessment System properly developed and implemented, in line with

agreed quality standards and targeting selected educational stages.

4. A strengthened planning, budgeting and monitoring (PBM) process that results in a more

equitable and efficient distribution of resources and is informed by improved monitoring of

NSED implementation.

Inequalities in the education sector will be addressed within each project component, by

ensuring benefits target the more vulnerable groups (adolescent girls and children with

disabilities mainly) and areas. In particular, promoting greater equity will be a priority issue in

the proposed support for improved planning, budgeting and monitoring.

3

1 CONTEXT

1.1 Sector/Country/Regional context/Thematic area

The immediate and overarching sense of the education sector in Tajikistan is that of slow and

steady decay. The strong legacy of education provision established when Tajikistan was part of

the USSR has not sustained. As a result, “today’s students are receiving a lower quality

education compared to their parents’ generation”.1

Despite the commitment to work on the many issues affecting the system expressed in several

international fora2, the several legislative acts and strategic documents developed and the

regular and steady increase of the budget allocation, there appears in the country a strong sense

of conservatism rooted in a classical approach to education and some understandable resistance

to “outside” interference. While part of the problem lies with those with a vested interest in the

status quo of a system that meets the needs of the elites and powerful, the education leadership

does not seem to possess (or fails to show) that vision and energy needed for transformational

reform.

Corruption is widespread in Tajikistan which ranks 154th

out of 173 countries3, slightly lower

than Kyrgyzstan (and Angola and DRC for an African comparison) but slightly above

Uzbekistan and Turkmenistan. Corruption permeates many parts of the education sector, with

public opinion recognising this as one of the most vulnerable sectors. This is most notable in

sector financing (including Per Capita Financing - PCF), construction and equipment, teacher

management and behaviour, and accreditation fraud, and information systems4.

The problem of the education sector in Tajikistan is not so much of access, though there are

inequalities that affect vulnerable populations, but is very much more one of the relevance and

quality of education. When compared to other countries of similar economic status Tajikistan

performs well on the majority of education access indicators, with the exception of pre-primary

education where Tajikistan (8.7% GER) is well a drift of the global lower middle income

country average (45.2%). Indicators at subsequent levels show Tajikistan’s performance to be

slightly below lower middle income average Primary Gross Enrolment (GER) (100.5%

compared to an average of 104.2%), but records above average GER at lower secondary (97.8%

compared to 75.9%) and at upper secondary (65.1% compared to 48.2%). Enrolment and

completion of the primary cycle are near universal with gender parity5. Completion rate in

grade 4 (the last year of primary education), grade 9 (the last year of compulsory basic

education) and grade 11 (secondary education) are reported at 108.5% (girls 107.2%), 95.5%

(girls 91.4%) and 62.2% (47.9% girls) respectively. Dropout rates for girls increases toward the

end of the basic education cycle (reaching 13.8% in grade 9) 6.

1.1.1 Public Policy Assessment and EU Policy Framework

The Right to Education is clearly stated by article 41 of the Constitution. General secondary

education is compulsory (grade 1 to 9) and free of charge. There are currently 6 major laws

regulating the education sector, the most prominent one being the Law of the Republic of

1 Martha Brill Olcott (2012) Tajikistan’s Difficult Development Path. Chapter 8. Carnegie 2 Being the last example the impressive pledge made during the Second GPE Replenishment Pledging Conference

of June 25-26 in Brussels 3 Transparency International Corruptions Perception Index 2013. http://cpi.transparency.org/cpi2013/results 4 U4 Anti-Corruption Resource Centre 2012: Building Integrity and Transparency in the Education Sector in

Tajikistan. Dushanbe, June 2012 5 World Bank (2013) Review of Public Expenditures on Education. Report 77607-TJ, p. 6 6 Education Synthesis Report, S. Mirzoev, MoES, UNICEF, April 2014, p. 159

4

Tajikistan "On Education" (July 22, 2013)7. The law was recently developed in close

collaboration with development partners and civil society and should support the

implementation of a variety of reforms currently on-going or in the pipeline, maintaining

coherence with the several international standards regulating the provision of education

services8.

The Central Management Board in the Ministry of Education and Science (MoES) is

responsible for the overall management of the system and oversight of all levels and types of

education including the coordination and monitoring of education institutions' directly or

indirectly via its local bodies. Two lower levels of government complement the management

structure, where the Regional Education Directorates play a coordination role for planning and

budgeting functions and the District/City Education Departments is the key point of contact and

provider of direct services to schools9.

In March 2013 the Initial TVET system was transferred into the structure of the Ministry of

Labour, Migration and Employment (MoLME), with the MoES retaining responsibilities over

the Secondary TVET system and over the supervision/approval of initial TVET programmes.

The National Development Strategy (NDS) for 2007-2015 recognises the pivotal role of

education in the development of the country. The NDS strongly emphasizes the need to

establish adequate mechanisms to "boost the potential of the education sector" in the medium to

long term10

. The NDS also aims at providing guidance in setting some education related targets

for 2015 (e.g. 50% reduction in gender inequality in general secondary educational institutions;

25% of general secondary school teachers retrained yearly; among others), though these may be

realistically reachable only by 2020, assuming a strong political will for reforms and favourable

conditions for the growth.

The National Strategy for Education Development (NSED) is the policy document guiding the

education sector development to 2020 and was approved by the Government in July 2012. Its

main goal is to create the conditions to ensure universal access to relevant and quality

education. Acknowledging all the existing challenges in the education sector, the NSED sets

out three objectives: (i) to modernize education content; (ii) to re-structure the education

system; and (iii) to improve access to quality education.

The strategy was appraised by the Local Education Group (LEG) and, whilst it was formally

endorsed, there were some strong caveats that outlined risks to its implementation. Major

concerns with NSED include (a) its broad over ambition and failure to establish priorities; b)

extremely weak implementation plan represented by the MoES’s 2012-2014 Mid-Term Action

Plan (MTAP); c) Lack of both financial resources and capacity for implementation; and d) No

clear targets and a weak monitoring framework.

The first education Joint Sector Review (JSR) held in April 2014 represented a useful occasion

to confirm the already identified weaknesses in policy implementation by MoES and provided

solid ground for MoES and Development Partners (DP) for committing themselves in changing

the trend for the future. The MTAP 2015-2017, endorsed at the end of 2014, is providing much

7 Of particular importance for the project is also the Law "About training of specialists taking into consideration

the labor market needs” (№ 895) adopted in 2012 to establish of a permanent mechanism of adjusting demand for

professional skills and their supply in the TVET sector but lacking implementation. 8 Education Synthesis Report, S. Mirzoev, MoES, UNICEF, April 2014, p. 44 9ECORYS - MTEF (2010) –Intergovernmental Fiscal Relation in Tajikistan: Suggestions for improvements from a

budgetary perspective, p. 29/31 10 Education Synthesis Report, S. Mirzoev, MoES, UNICEF, April 2014, p. 52

5

clearer and realistic targets, improved costing and an easier monitoring framework. The plan

operationalises the NSED focusing inter-alia on TVET and management.

Public spending on education rose steadily from 2.3 % of GDP in 2000 to 5.1% in 2014. The

current level is comparable to that in countries with similar level of development and is in line

with Tajikistan’s overall size of the budget and demographic structure. The NSED clearly

indicates the commitment of the Government of Tajikistan (GoT) to increase it to 6% by 2015

and at least 7% by 2020.

The proposed project is in line with EU commitments in education, to focus on equity, quality

and skills development and in particular it responds to the Agenda for Change's call for an

enhanced support for quality education as part of a comprehensive support to inclusive and

sustainable growth for human development. The specific focus on improving learning outcomes

is finally in line with the priorities identified in the Commission Staff Working Document

“More and Better Education in Developing Countries” and the recommendations arising from

the EU High Level Conference on Education and Development held in Brussels in May

2013.The project is also in line with the new EU Communication "A Stronger Role of the

Private Sector in Achieving Inclusive and Sustainable Growth in Developing Countries"11

.

1.1.2 Stakeholder analysis

Stakeholders of the Project include:

At National Level: the MoES, the TVET Department of the MoLME, the Methodological

Centre under the MoLME, the Republican Institute for In-Service Teacher Training (RIITT),

the National Testing Center (NTC), the Academy of Education (AoE), the LEG co-chaired by

the MoES and UNICEF, Relevant Working Groups (Teacher Training, Curriculum, TVET,

Inclusive Education).

At Local Level: Local Education Offices at Provincial (Oblast) and District (Rayon) levels;

RIITT branches (Regional Institutes for Teacher Training - RITTs) (5) Engineering

Pedagogical College (EPC); 3 regional TVET Lyceums selected to provide in-service teacher

training and synergised with those identified for the ADB project; General Secondary Schools

providing secondary cycle in selected regions; Parent Teachers Associations and School

Management Committees; CSOs and CBOs working in improving quality and equity in

education in the target areas.

The Project will provide training, guidance and mentoring and support to policy development

and implementation to the following groups: selected staff of key MoES' departments (Pre-

school and General Secondary Education, Economics and Planning, Internal Audit, Finance and

Accounting) and key staff from the MoLME TVET Department, and the Methodological

Centre, RIITT and regional branches staff, AoE staff, NTC staff, EPC and 3 Lyceums selected

to provide in-service teacher training staff and school and lyceums managers. Secondary school

and lyceums' teachers will directly benefit of reformed Teachers CPD Programmes. The final

beneficiary is the Tajik school and lyceum population as a whole (and in particular girls and

children with Disabilities) that will benefit from a better quality service and whose learning

outcomes are expected to increase as a result of improved skills and service delivery.

1.1.3 Priority areas for support/problem analysis

Five major sets of problems with serious implications on the entire system were identified

during the identification and formulation phases:

11 COM(2014) 263 final

6

1. Low levels of teacher skills and competencies, with teachers generally adopting a

didactic, out-dated, lecture style pedagogy that fails to actively engage learners

Tajikistan has a problem in maintaining an effective teaching force. Low rates of pay (70% of

the average wage – USD 6912

) makes the teaching profession an unattractive choice profession

for many young people; these results in high attrition rates and the teacher training system

struggles to supply enough new teachers. Several supply-side provisions have been introduced

by government to attract and retain qualified young teachers and support their deployment

outside urban areas. Despite the widespread recognition of the importance of these measures,

implementation and coverage seem to remain extremely limited due to the minimal fiscal

space13

with subsequent lack of evidence of a real impact on the system.

Teaching is reported to be very largely didactic in nature, with teachers lacking understanding

and the necessary skills for activity-based learning. Large numbers of teachers are also reported

to be under-qualified for the level they teach and a system for the upgrading of underqualified

teachers (very conservative estimate by RIITT, 4,500) leading to a Diploma equivalent

certificate to be administered by the RIITT. This is currently under evaluation of the MoES.

MoES policy requires all serving teachers to undergo retraining once every five years, with the

new target stated by the MTAP 2015-2017 to increase the frequency to once every three years

(adding additional pressure to a seemingly overstretched system). It is not clear the extent to

which official re-training actually happens14

, or more significantly, what the quality of re-

training is like. The limited exposure to teaching practices during the field visit tends to confirm

that the quality is fairly low. The mode of delivery is old-fashioned, through short classroom

based programmes that seem to have a limited impact on the quality of teaching despite

significant costs.1516

.

2. No systematic measures of learning achievement, either through a national

assessment (sample) or through public examinations, making discussions on “quality”

problematic

Tajikistan has no standard way of assessing learning, though the recently established NTC sets

and administers the end of secondary school tests that determine access to higher education

since this year. Prior to this, there have been no national measures of learning achievement.

Results from the USAID supported an Early Grade Reading Assessment in 2011 showed major

deficiencies in reading fluency at Grade 3, worsening at Grade 417

. These results have been

largely confirmed by the EGRA 2014 (however, results have been strongly contested publicly

by the MoES, allegedly because of a weak methodology applied). The absence of a truly

national learning assessment system that generates reliable and regular data on learning levels,

as well as a credible public examination system, severely limits any discussion on education

quality.

12 World Bank (2013), GPE-4 Project Appraisal Document, p. 15 13 Education Synthesis Report, S. Mirzoev, MoES, UNICEF, April 2014, p. 48 14 GPE-4 PAD reports INSET institutes to have sufficient capacity to accommodate ½ of eligible teachers at most 15 World Bank (2014) Implementation completion and results report, FTI Catalytic Fund Project – 3, p. 22 16 An INSET System Review performed in 2010 under FTI 3 Grant (now GPE) confirms this analysis and reports

additional issues regarding the level of preparation of trainers (mention is made to active learning techniques but

subject specific support – mainly for scientific subjects – is also reported to be in great need), the absence of

adequate teaching and reference material to support practice and absence of flexibility for teachers to have a say in

their professional development path. 17 USAID (2012), Review of Early Grade Reading Teaching and Skills, Final Report, p. 4

7

3. A TVET system that is not geared to the present and future labour market needs of

Tajikistan and the region, with out-dated curriculum, poor infrastructure and

facilities and poorly motivated and trained staff, particularly at the initial level which

serves poorer students

A well-functioning TVET system is one of the key factors to support economic growth in

Tajikistan and reduce poverty. The existing initial TVET governance structure has recently

been the subject of a major change as the MoLME has, from March 2013, taken over

responsibility for the initial TVET sub-sector from the MoES. However, until an improved

legal framework brings coherence, the risk exists for the two ministries to operate in isolation

with poorly defined roles and responsibilities leading to misunderstandings and possible

conflict between those different ministerial departments that have responsibilities for different

aspects of the initial TVET sector.

At present the mechanisms that allow responsiveness to individual training needs of teaching

staff, quality improvements in the delivery of initial TVET curricula, in the development of

TVET curricula to the actual and future needs of the labour market and in the lifelong learning

do not exist or are not fully developed. Concerning the teaching staff, while it is true that

general subject teachers in TVET Lyceums participate in the present five year rolling in-service

training programme provided by the RIITT under the MoES (if at different times from their

colleagues from the General schools) there are no systematic professional development in-

service training programmes for the skill teachers (Masters) from initial TVET Lyceums.

4. A weak culture of using and analysing data for planning and resource allocation,

combined with lack of accountability for resources

Various reports and analyses, including the GPE appraisal, have highlighted the need for both

greater use of data and analysis to underpin decision making, a failure to effectively prioritise

activities from a daunting list of challenges set out in the NSED and the need to make better use

of, and better account for, resources.

EMIS was developed and implemented under the support of the Fast-Track Initiative (FTI)

Grant, now the Global Partnership for Education (GPE) grants. To date, EMIS has been

functioning satisfactorily. But, given the timeframe it has been operational; improvements on

the initial design have been requested by the Ministry. The improvements, to be implemented

by UNICEF, will ensure more accurate collection and reporting on data, allowing to increase

the level of analysis that can be made based on the data collection.

Recommendations from previous analysis under an earlier FTI grant remain partially

unaddressed, in particular “management capacities require strengthening, including system

information for decision-making and strategic (and operational – authors addition) planning, to

execute fiduciary responsibilities, in human resources management, and to manage contracts.

Management capacities also require reinforcement in the four regional (Oblast) and 68 district

(Rayon) Education Departments”.18

Since the abolition of the Department for Education Policy

Analysis as part of the recent restructuring of the MOES, responsibilities for monitoring, at

different levels, have been re-distributed over several departments. Monitoring is disconnected

from planning. The current setting is reported as ineffective and specific request to increase

coherence in the monitoring processes came directly from the MoES at deputy minister level.

The GPE appraisal provides a clear agenda for improvement that focusses on prioritisation,

developing clear implementation strategies and a clear way of monitoring progress.

18 World Bank (2013) Global Partnership for Education Project Appraisal Document p. 17

8

5. Inequities that disfavour the poor, adolescent girls and the disabled

Equity is a major concern across the education system in Tajikistan. There are reported large

numbers of informal payments, ranging from book rental contributions to bribes for school

placement, extra tuition for teachers and payments for certification, which inevitably impact the

poor. Uneven allocation of budgets and resources, and opaqueness surrounding these processes

all contribute to inequality. Poverty and the need to work pull poor children out of school: girls

at the higher secondary levels are particularly vulnerable (Gender Parity Index (GPI) in lower

secondary: 0.9; in upper secondary: 0.74319

). Stigma and unpreparedness of the education

system to properly deal with inclusion make access a challenge for many children with

disabilities. In many cases, solutions to these issues lie outside the influence of the education

sector, though good, well-resourced and well-functioning schools can help overcome these

societal barriers.

2 RISKS AND ASSUMPTIONS

The major anticipated risks and mitigation measures are identified below. The overall risk

rating of the Project is medium.

Risks Risk

level

Mitigation measures

Overall political stability of the country L

Coordinated effort from DPs in supporting

stability

Insufficient investment in education sector

infrastructure and equipment undermines

implementation of reforms M

Good policy dialogue and continued

advocacy for GoT to fulfill with its

commitment in terms of Budget allocated

to the Education sector

High levels of corruption remains within

the sector and can infect implementation of

the project and the results H

EU Support to PFM reform positively

impacts on reducing corruption. Improved

oversight of resources through project

actions.

Nepotism and vested interests by

MoES, MoLME and Government

Agencies undermine the identification of

key beneficiaries of capacity development

processes

M

Development and implementation of

transparent procedures and effective TA

monitoring of project activities

MoES, MoLME and key institutions fail to

commit to change and reform

M

Good project management to promote and

ensure active participation of the

beneficiaries and main stakeholders thus

securing ownership of project results

Institutional capacity insufficient to

support project delivery M

Commitment of the main beneficiaries to

ensure active participation of key staff in

project implementation

CPD programmes delivered but not leading

to sustainable change in teaching as not

adequately supported at school level

M

Good Project Management in promoting a

participated consultative process in the

design of the CPD systems

Lack of a well-defined policy framework

defining clear roles and responsibilities of

ministries and other institutions responsible

for the general and vocational sector

M

Assess existing regulatory and legal

framework for the sector and develop a

coherent policy framework

19 Education Synthesis Report, S. Mirzoev, MoES, UNICEF, April 2014, p 159

9

Tajikistan's potential accession to the

Eurasian Economic Union and related

impact on labour market's needs.

M

Flexibility of the proposed programme

would allow for adaption of skills'

development

Assumptions:

The Government of Tajikistan, the European Commission, IFIs and other donors continue to

support the strategic goals of the Country Development Strategy as they relate to the Education

Sector, and support projects that pursue these aims

The macro-economic situation in the country stabilizes and the forecasts contained in the Medium

Term Budget Framework and the Medium Term Expenditure Framework for the Education Sector

are realized

The Government of Tajikistan remains committed to the implementation of reforms targeting the

introduction of the principles of good governance in the Education Sector

The Government of Tajikistan is willing and able to provide within the Medium Term Budget

Framework the necessary resources to ensure the rehabilitation and development of the Education

Sector

3 LESSONS LEARNT, COMPLEMENTARITY AND CROSS-CUTTING ISSUES

3.1 Lessons learnt

In-Service Teacher Training and Continuous Professional Development (General Secondary

and Initial TVET)

A number of interventions in the recent years have targeted Teacher Training and specifically

in-service teacher training from several different angles. Support from a variety of providers

can best be characterised as pursuing quite specific project ends (e.g. human rights education,

inclusive education, environmental education, etc.) and has not focussed on system

improvement. This has resulted in a very fragmented and ad hoc approach to CPD, often with

limited geographical coverage. However, the following experiences offer some good lessons for

the design of the Project. Each has developed a degree of capacity amongst stakeholders, which

offer a useful resource base on which to base project initiatives.

The FTI-3 project (WB implemented, USD 13.5 million), concluded in 2013, registered

positive results through improved mentoring approaches and strengthened skills of quality

control on teaching from school directors.

In relation to the quality of teaching, AKF have implemented in a variety of schools innovative

in service teacher training modules applying the principle of "relevance pedagogy" and

introducing school based "communities of practice". AKF results could be used and adapted

taking into account the challenges of secondary education.

The USAID funded Quality Reading Project (QRP) also provides some good lessons, in

particular regarding the development of active teaching and learning methods, training of

trainers and materials that were developed.

During the first 2 phases of the project "Support to Sector Reform Process of the VET System

in Tajikistan" GIZ succeeded in setting up a system of "centres of competence" focussing on

7 Lyceums and 8 Adult Training Centres. The approach is reported to be successful in

improving the quality of the training provided within the centres. The model of the centres

10

reaching out to and supporting improvement in surrounding lyceums has not however

been so successful mainly due to an underestimation of the funds required for this activity.

Greater attention needs to be paid to facilitating the outreach in addition to developing the

centres of competence.

Learning Assessment

USAID supported two project based Early Grade Reading Assessments (EGRA) in 2011 and

2014. The EGRA reports identify a clear correlation between teaching practices and reading

skills of pupils, highlighting the widespread adoption of inadequate techniques and reaching the

conclusion that "most teachers are not trained to recognize and address the individual learning

styles and abilities of students". This conclusion, though related to reading only, is equally

applicable to the majority of the subjects taught, providing additional ground to support

assessment as a twofold tool to assess the learning of students and at the same time to

shape the content of CPD programmes so that teachers are better able to raise learning

achievement. EGRA findings also indicate significant differences in mean scores between

urban and rural schools, providing a clear suggestion to keep rural areas in high

consideration in the definition of the geographic scope of the Project. The introduction of

the unified entrance examinations for university applicants performed by the NTC is also

relevant to the establishment of a system for assessment in the country. OSI, UNDP and World

Bank supported this process.

Planning, Budgeting and Monitoring

The introduction of Per Capita Financing (PCF) for general secondary education (piloted since

2005 and officially introduced from 2007/2008) has had positive outcomes on the accuracy and

efficiency of the planning and budgeting processes. PCF is reported to have led to a more

equitable and efficient distribution of resources, increased budget autonomy and brought

greater transparency through community involvement in school-based planning and

budgeting20

. The EU funded MTEF Project has advocated since 2010 a scaling up of PCF,

proposing that Teacher Training Institutions also be included under this financing modality21

.

Expansion of PCF to other subsectors (Early Childhood Development and TVET) is already

under discussion. Nevertheless, there is still considerable scope for improvement, and the fact

that PCF has been operational for a number of years now allows for more informed analysis to

underpin possible improvements and the correction of distortive effects that the current system

has created. The FTI-3 review of PCF and Education Management Information System (EMIS)

suggests the redefinition of the allocation formula with a stronger focus on equity: small

schools are disadvantaged by the system. There is scope to include additional incentives to

support access and retention of vulnerable categories – and specifically girls and children

with disabilities. Stronger monitoring on PCF implementation, including an increased and

systematic use of newly introduced financial management software, are areas to be further

supported. OSI also recently produced an analysis of the PCF system in the context of inclusive

education in Tajikistan that will further inform future actions.

20 World Bank (2013) Review of Public Expenditures on Education. Report 77607-TJ, p.2 21 ECORYS - MTEF (2010) –Intergovernmental Fiscal Relation in Tajikistan: Suggestions for improvement

from a budgetary perspective, p.

11

3.2 Complementarity, synergy and donor coordination

EU complementary actions

The Project represents the first engagement of the EU in the education sector through bilateral

cooperation in Tajikistan and therefore no education specific EU complementary action is

available. Nevertheless, the forthcoming projects in PFM ("PFM Reform Support

Programme for Tajikistan", PFMRSP, EUR 8 million) will provide possibilities for

synergies and complementarities. MOES was one of the three first line ministries to embark on

the MTEF (Mid-Term Expenditure Framework) reform. The conceived model for budgeted

planning at school and local government levels, consisting of a 1 years plan combined with a 5

years perspective plan is in line with the MTEF planning cycle, thus the Project will be working

closely with the PFMRSP to strengthen the participation of local education offices (Rayon and

Oblast) and schools in the process. All the elements of the capacity building process under

result 4 of the Project will be developed in close consultation with the PFMRSP. Activities

related to the PCF system and its implementation in education subsectors/institutions not

currently involved (INSET and TVET) will also provide room for collaboration between the

two projects. Finally the Project will work closely with the PFMRSP to develop the

financial component of the MOES monitoring system. Consideration will also be given to

opportunities provided by the EU funded Enhanced Competitiveness of Tajik Agribusiness

Programme (ECTAP) for what concerns involvement of the private sector in the provision

of skills upgrade programmes for trainers from the TVET sector. ECTAP will focus on

enhancing the development of the Tajik agri-food values-chains, to contribute to poverty

reduction and economic growth in Tajikistan.

The EU, through Erasmus Mundus and Tempus programmes (now combined under

Erasmus+, the fundamental EU programme for education, training, sport and youth), over the

years have also supported Pedagogical Institutes (and Higher Education institutions at large) in

areas related to teacher training at pre-service level and it will be important to build also on the

achievements of these initiatives. On a regional level the Central Asia Education Initiative is

promoting policy dialogue in CA partner countries around several themes functional to the

forthcoming programme and will be kept in high consideration to provide coherence and

consistency with the EU action in Central Asia in the field of Education.

Finally, several opportunities for collaborations will be opened by the expected focus of the

European Training Foundation (ETF) on INSET in the TVET system in Tajikistan and in

the Region. The ETF will be promoting regional dialogue on development and strengthening of

the professional development initiatives for teachers and trainers, and the Project is expected to

contribute and learn from this process. The Project will also rely on the inputs coming from the

community of practices (mainly from the one on teaching and learning) established and

supported by the ETF in the country, to inform its support to the development of the CPD

system. Finally, proper consideration will be given to the training material developed under the

concluded ETF project on school development, to adopt and promote as much as possible

relevant modules.

Other Development Partners

The fourth Global Partnership for Education (GPE-4) Grant (USD 16.2 million, 3 years,

implemented by the WB) builds on achievements of the previous FTI grants. This continues

some of the activities and supports new areas like Early Childhood Education and Inclusive

Education and complements work started with other DPs such as UNICEF, AKF, USAID and

OSI. The activities related to primary level teacher training and system strengthening – focusing

on planning functions within MoES – are both areas that complement the Project.

12

The "Development of Pre-Service Teacher Pedagogical Approaches for Quality

Education" Project (2 years duration from 2014), which is funded and implemented by

UNICEF, targets pre-service teachers enrolled at the Tajik Pedagogical University to promote

quality education at the basic education level through methodological, didactic, and technical

support of the teaching process.

USAID is supporting the government’s effort to improve reading skills in primary education by

working on competency based reading instruction (for Russian and Tajik) in grades 1-4. As part

of its activities USAID intends to conduct regular assessment of its reading interventions and

student learning outcomes over a four-year period. Collaboration in the area of reading

assessment with the NTC is envisaged.

The ADB is currently finalizing the design of a USD 20 million programme in Initial TVET

with the main aim of supporting the GoT in developing a more effective, efficient, quality

assured, and flexible Initial TVET System focusing on selected priority occupations and

targeting 21 lyceums over the country. The programme will be touching upon many different

areas of the Initial TVET sector including refurbishment and equipment. This will require

additional contributions from other DPs to have maximum impact. Considering the dire needs

in terms of equipment and infrastructure, there is a clear opportunity to cooperate with ADB in

the prioritization of lyceums to target for further upgrade of facilities for teaching and learning.

The Project will select three regional Lyceums to deliver both vocational curricula and in-

service training provision for teachers and managers, promoting a more efficient and effective

use of scarce resources. Synergies with the ADB project will be sought also in skills

development areas.

GIZ has started the implementation of the 3rd phase of the "Support to Sector Reform Process

of the VET System in Tajikistan" project (EUR 3.2 million, started in 04/2014). The

programme, building on the two previous phases, will work on three major areas: Policy and

System advice (through the creation of an inter-ministerial advisory board for TVET –

CCVET), Capacity building for school management, and Capacity building for teachers and

instructors in selected VET centres. The Project will assess the functioning of the CCVET and,

if possible, will rely on it for all the consultation processes related to policy development under

result 2. The Centres of Competence will also represent an additional resource that the Project

will rely on for what concerns the provision of professional development opportunities for

trainers (secondment and provision of short trainings).

3.3 Cross-cutting issues

Gender and Inequalities - Addressing inequality is a relevant objective of the project. Girls'

retention in the higher grades of secondary level education, inclusion of children with

disabilities and the rural/urban divide in quality of the provision of services will be the main

areas the Project will try to tackle mainly through improved planning and budgeting but also

through teachers' and TVET trainers' CPD, and policy dialogue at large.

Good Governance - The proposed support will address issues of good governance through the

component focussing on improved planning, budgeting and monitoring not only at national

level but also (and mainly) at local level, strengthening capacities of region and district to fulfil

with their responsibilities and better support lower levels (schools) to actively contribute to the

process.

Human Rights and Environmental Sustainability - Several partners in Tajikistan have relied on

education as the best way to deal with Human Rights and Environmental Sustainability. The

project, through the support provided to teachers' CPD will review existing teachers' training

programmes in the two areas and support government in deciding if and how to carry them

forward.

13

4 DESCRIPTION OF THE ACTION

4.1 Objectives/results

Overall Objective: To contribute to the development of a modern education system, able to

prepare informed and qualified citizens who are ready for the "world of work" and who can

contribute to greater political stability, economic prosperity and social well-being in Tajikistan.

Specific Objective: To improve learning outcomes at secondary and initial TVET level through

more efficient and effective delivery of education and training services

The Project has four Expected Results:

Result 1: A modern, viable and competence based teachers' CPD system, better responding to

teachers' needs and built on successful national and regional experiences is developed and

piloted for secondary school teachers in selected regions.

Result 2: A modern and viable TVET teachers’ CPD system, better responding to teachers’ and

Lyceums managers’ individual needs and built on successful national and regional good

practices is developed, piloted and embedded

Result 3: A National Learning Assessment System properly developed and implemented, in

line with agreed quality standards and targeting selected educational stages, by the National

Testing Centre.

Result 4: A strengthened planning, budgeting and monitoring (PBM) process that results in a

more equitable and efficient distribution of resources and is informed by improved monitoring

of NSED implementation.

4.2 Main activities

Result 1: The Project will support a shift from supply driven episodes of training to teachers’

Continuous Professional Development as part of lifelong learning, based on teachers’ needs and

better responding to the shortening of the re-training cycles promoted by the MoES. The focus

of the Project will be on serving secondary school teachers. Establishment of working groups to

deal with the variety of technical issues in the teaching area that the Project will try to address

will build local expertise and experience and will ensure both ownership and sustainability of

the project results. The Project will support the development of a policy framework and mid-

term strategy for teachers’ CPD. Within this framework the Project will facilitate the

development of a Teacher Competency Framework (TCF), ensuring coherence with activities

under Result 2 (TVET). The TCF will represent the basis for the analysis of the present INSET

system, of the teachers’ training needs and of the RIITT's and RITTs' training needs. The TCF

will also provide the framework of levels for the teachers’ professional development path.

Methodologies for advanced training of RIITT and RITTs pedagogical staff will be developed

and training programs will focus on building their capacity and skills to implement the

improved Teachers’ CPD system. The Project will then target the development of

methodologies, training modules and training materials (based on active teaching and learning

and students’ centred pedagogy) for quality-based secondary teachers’ CPD in the area of

general pedagogy (applicable to all subjects), and additionally for Tajik language and

Mathematics, (where curriculum changes are currently under development), exploring also

possible options for the use of ICT. Elements of inclusion will be integrated in all the capacity

building activities to make sure teaching also contributes to increase equity in the system. These

modules will tentatively apply to both teachers from general education and initial TVET (for

general subjects) strengthening coherence in the system. The Project will then support the

piloting of trainings of improved quality-based Teachers’ CPD in a sample of schools.

Activities related to awareness-raising of the new CPD system developed are also envisaged.

14

Procurement of equipment (classroom equipment, laboratories, teaching reference material,

etc.) will complement the TA support provided to the RIITT and RITTs.

Result 2: The Project aims to support the development of a modern and viable TVET teachers’

CPD system that better responds to teachers’ and school managers’ individual needs, built on

successful national and regional good practices. The Project will focus on strengthening the

capacities of the TVET Department of the MoLME to consolidate its role in developing and

managing the sector. Enhancing capacities of existing teacher training centres such as the EPC

along with a further three Lyceums in the regions will also be at the core of the intervention. In

light of the recent change of the MoLME taking over the responsibilities for initial TVET from

the MoES, the need is there for further development of a legislative framework (including the

definition of an action plan for its implementation) to ensure that there is clarity in the roles and

responsibilities of the ministerial departments that have the responsibility over the initial TVET

sector. The Project will support this area of work, ideally within the framework provided by the

CCVET, which was recently established. The Project will also promote a comprehensive

review of TVET in-service teacher and management training in order to develop a framework

(TCF) that will identify the competencies that trainers and managers should have (in close

collaboration with the development of the TCF under result 1). The development of a national

Staff Appraisal System (SAS), as part of an overall quality assurance process for the TVET

sector, will also be an area of support to the MoLME that will be accompanied by the Project

during the roll out process. Information related to training needs analysis will be collated,

analysed and prioritised by the TVET department of the MoLME who, based on this analysis,

will request training programmes to be developed and delivered by in-service providers. The

SAS will identify the individual training needs of teaching and management staff on a regular

basis. The Project will then work with the in-service teacher training providers (including

private sector) to develop curricula for in-service qualifications for teaching and school

management based on the TCF in in the area of general pedagogy and in selected skills.

Elements of inclusion will be integrated in all the capacity building activities to make sure

teaching also contributes to increase equity in the system. The use of a range of modalities

(secondment to other lyceums, use of ICT and the periodic combination of teaching function

with an enterprise function, peer observation, reflection practices, etc.), will also be explored.

Concerning the involvement of private sector, technical support will be provided to the

development of business-school partnership agreements that may assist with the up-skilling of

TVET teachers through short term secondments for skill teachers. Procurement of classroom,

workshop equipment and teaching reference material is also envisaged to ensure that the

capacity of the in-service training provision for TVET teaching staff will meet the needs of the

sector.

Result 3: The lack of any standardized mean of measuring what students are learning during

their schooling is a major gap in the education sector. The Project will guide and mentor the

MoES in the definition and development of a policy framework for learning assessment leading

to the actual implementation of the first national assessment in general education in Tajikistan.

The MoES will be supported to define the ‘substance’ of the process, i.e. what is to be tested,

how and when, ideally through a working group or task force. The policy framework will also

provide clear roles and responsibilities of the different stakeholders at all levels involved. A

policy for national assessment will be a key output of this activity. In light of the initial capacity

already established and in line with its clear mandate, the National Testing Centre (NTC) will

be tasked with the responsibility of the administration of the assessment. By the end of the

Project the NTC will be able to mount, at the very least, biannual surveys of learning

achievement in key curriculum areas. Tajik language and Mathematics are the suggested

options in light also of the progress made on curriculum review at primary and secondary level

in these subjects under GPE 4.

15

The NTC will also be the main recipient of technical assistance under this component. The

capacity building process will cover all the technical areas related to national assessment (e.g.

item development, use of item response theory and psychometrics, test development and

validation, assessment logistics, marking and grading, sample design, testing etc) and will also

support the development of processes and protocols related to the new activity. A combination

of different forms of capacity building (including study tours and mentoring/coaching) will be

used. Piloting of both assessment administration and pretesting of items will be conducted in

preparation to the actual implementation of the assessment that is expected during the third year

of project. Selected MoES departments, RIITT and external agencies (AoE) will also be

involved in extensive capacity building to lay the ground work for an effective use of the

information that the new system will generate. Possible synergies with on-going DP funded

projects (in particular USAIDs EGRA) have been discussed and will be further explored during

the inception phase. Finally the Project will develop a communication strategy to convey

messages to all the relevant stakeholders about the NSA and what to expect from it.

Procurement of technical equipment (printing and IT) to support the NTC in the process is

envisaged.

Result 4: The Project will support the development of a PBM education management system,

based on EMIS analysis, improved monitoring and complementary research. It will focus on

building capacities at different levels (MoES, Oblast, Rayon) on strategic planning, policy

analysis, monitoring, financial management and in actual use of the system, relying on the

Rayon Education Departments for reaching out to schools and supporting them in their regular

planning and budgeting activities. The RIITT and RITTs would provide venues and trainers for

the training, supported by trained MoES staff and supervised by the project team. The

involvement of the RIITT and RITTs, already providing management training for school

directors under GPE 4, will allow close synergies with Component 1 and the on-going GPE 4

grant and will guarantee sustainability. The MOES will also be supported in rethinking the

current distribution of monitoring responsibilities, ideally re-establishing a department for

Monitoring and Evaluation, to monitor the implementation of the NSED and the MTAP

(including contributions from GPE and donor funded initiatives). The MoES will be assisted in

setting up procedures for the monitoring and reporting (including development of tools).

Training activities related to the introduction of the new system will be delivered as additional

modules of the PBM training by the RIITT branches. The Project will also support the MOES

(and MoLME) to strengthen the existing PCF system, promoting a more equitable distribution

of resources, prioritising girls and PWD as vulnerable categories, and to develop a Phased

Costed Plan for gradual transition to PCF throughout the education sector focusing initially on

VET and INSET system (building also on inputs from Result 1 and 2). The activity implies a

close collaboration between the selected departments of the MOF and the department of

Economics and Planning at the MoES. The Project will finally support an analysis of possible

scenarios for an improved system of differentiated remuneration for secondary schoolteachers,

taking into account CPD and quality performance indicators. The TCF developed under Result

1 and 2 (and the work done under those areas in general) will represent a crucial element for the

development of this activity that will also involve several departments of the MoES, the

MoLME and the MoF. Recommendations arising from this analysis are expected to then be

carried forward by the following projects in support to the sector. Targeted procurement of IT

equipment (e.g. computers, printers, projectors, etc.) to support the process at central and local

level is envisaged.

The Project will also include a research component covering the four results, which will

provide: a research framework, a baseline study and a study at the end of the three years of

project implementation looking into changes that the Project will bring. It will be part of the

16

longitudinal study that should be continued, after the end of the project, by the two following

phases of the EU support. Activities supporting small research projects will also be provided, to

build capacities of individuals and local organisations in educational research.

4.3 Intervention logic

The Project is setting the foundation for qualitative changes and represents the first part of an

EU longer term support to the educational reform process in Tajikistan tentatively to be

implemented through a significant share of sector budget support. GoT already met the general

preconditions for budget support. Maturity to reform in the education sector will be tested

against the progresses (adoption and degree of implementation) in those key policies and

frameworks that are proposed by the Project (but not only) and will inform the way forward.

Development of a modern teachers’ CPD system both in general education and TVET will lead

to a long term improvement of learning outcomes, which will be assessed through the national

assessment system established by the Project. Strengthening of PBM processes will provide a

transparent system that would allow an improved and more equitable use of the existing

resources. All the components provide a systemic approach by harmonising interventions and

enacting synergies towards the expected outcome. The consistency in the focus on specific

subject areas (Tajik and Mathematics for what concern general education) across the project

components should also allow an extended analysis of the impact of the proposed approaches

on learning, informing the designing of the future interventions. Sustainability and ownership of

the project results is ensured through the institutional capacity building and human resources

development of core staff of key selected institutions and ministry departments for all the

components through a participative approach.

The proposed results and activities are consistent with the NSED and the MTAP. Many

indicators pertaining to the MTAP were also used.

The combination of the design and intervention/actions will gradually lead to a greater

involvement of the MoES, MoLME, local government officials, staff of pedagogical institutions

and the business community in the project activities, which is instrumental for the successful

implementation.

5 IMPLEMENTATION

5.1 Financing agreement

In order to implement this action, it is foreseen to conclude a financing agreement with the

partner country, referred to in Article 184(2)(b) of Regulation (EU, Euratom) No 966/2012.

5.2 Indicative implementation period

The indicative operational implementation period of this action, during which the activities

described in section 2 will be carried out and the corresponding contracts and agreements

implemented, is 60 months from the date of entry into force of the financing agreement.

Extensions of the implementation period may be agreed by the Commission’s authorising

officer responsible by amending this decision and the relevant contracts and agreements; such

amendments to this decision constitute technical amendments in the sense of point (i) of Article

2(3)(c) of Regulation (EU) No 236/2014.

17

5.3 Implementation modalities

5.3.1. Procurement (direct management)

Subject in generic terms, if possible Type (works,

supplies,

services)

Indicative

number of

contracts

Indicative

trimester of

launch of the

procedure

Provision of Technical Assistance to the GoT in

support to improved quality of education in the areas

of general education and initial VET (TA1 and TA2)

Service Two Q4 2015

Provision of equipment to selected institutions and

government agencies in support to improved quality

of education in the areas of general education and

initial VET (S1)

Supply One Q3 2016

5.4 Scope of geographical eligibility for procurement and grants

The geographical eligibility in terms of place of establishment for participating in procurement

and grant award procedures and in terms of origin of supplies purchased as established in the

basic act and set out in the relevant contractual documents shall apply.

The Commission’s authorising officer responsible may extend the geographical eligibility in

accordance with Article 9(2)(b) of Regulation (EU) No 236/2014 on the basis of urgency or of

unavailability of products and services in the markets of the countries concerned, or in other

duly substantiated cases where the eligibility rules would make the realisation of this action

impossible or exceedingly difficult.

5.5 Indicative budget

Result EU

contribution

(amount in

EUR)

Results 1 to 4

5.3.1 – Procurement (direct management)

Procurement – total envelop under section 5.3 14 750 000

5.8 – Evaluation, 5.9 - Audit 250 000

Total 15 000 000

5.6 Organisational set-up and responsibilities

A single Steering committee (SC) shall be set up to oversee and validate the overall direction

and policy of the Project in all its components and ensure an adequate co-ordination between all

institutions involved. The SC shall meet twice a year in the premises of the EU Delegation in

18

Dushanbe. The EU will co-chair the SC together with the Deputy Prime Minister for Education.

The decisions shall be taken in consensus. The SC will assist the European Union in performing

the following tasks:

• Supervise and ensure that the Project is implemented in accordance with sound, verifiable

and transparent reporting and auditing standards;

• Oversee the management of the Programme to ensure that objectives are met in a measurable

and verifiably manner;

• Review all project reports and work plans and ensure that monitoring and evaluation

procedures and general management functions are being performed in accordance with

international best practice;

• Address and settle all policy, administrative, coordination and financial matters related to

project implementation;

• Issue comprehensive meeting minutes with details of attendees, an overview of project

outputs, a summary of progress, constraints and outstanding issues.

The SC will consist of Government representatives (Deputy Prime Minister responsible for

Education, representatives of the MoES and of the MoLME), EU representatives (Head of the

EU Delegation, Head of the OPS section and responsible Project managers). The above list of

members is not exhaustive and may be extended. The contracted Technical Assistance team

will provide secretarial services to the SC.

5.7 Performance monitoring and reporting

The day-to-day technical and financial monitoring of the implementation of this action will be a

continuous process and part of the implementing partner’s responsibilities. To this aim, the

implementing partner shall establish a permanent internal, technical and financial monitoring

system for the action and elaborate regular progress reports (not less than annual) and final

reports. Every report shall provide an accurate account of implementation of the action,

difficulties encountered, changes introduced, as well as the degree of achievement of its results

(outputs and direct outcomes) as measured by corresponding indicators, using as reference the

logframe matrix (for project modality) or the list of result indicators (for budget support). The

report shall be laid out in such a way as to allow monitoring of the means envisaged and

employed and of the budget details for the action. The final report, narrative and financial, will

cover the entire period of the action implementation.

The Commission may undertake additional project monitoring visits both through its own staff

and through independent consultants recruited directly by the Commission for independent

monitoring reviews (or recruited by the responsible agent contracted by the Commission for

implementing such reviews).

5.8 Evaluation

Having regard to the nature of the action, a mid-term and an ex-post evaluation will be carried

out for this action or its components via independent consultants.

A mid-term evaluation will be carried out for learning purposes, in particular with respect to

assessment of the progresses and of GoT commitment to reform in the sector, validity of the

approach and to preliminary evaluate the work done, informing the design of the following

bilateral project in education with special care to the aid modality to adopt.

An ex-post evaluation will be carried out for accountability and learning purposes at various

levels (including for policy revision), taking into account in particular the fact that the Project is

promoting a long term longitudinal approach to research that should be assessed over the

various stages of implementation.

19

The Commission shall inform the implementing partner at least 1 month in advance of the dates

foreseen for the evaluation missions. The implementing partner shall collaborate efficiently and

effectively with the evaluation experts, and inter alia provide them with all necessary

information and documentation, as well as access to the project premises and activities.

The evaluation reports shall be shared with the partner country and other key stakeholders. The

implementing partner and the Commission shall analyse the conclusions and recommendations

of the evaluations and, where appropriate, in agreement with the partner country, jointly decide

on the follow-up actions to be taken and any adjustments necessary, including, if indicated, the

reorientation of the Project.

Indicatively, two contracts for evaluation services shall be concluded under two framework

contracts in January 2017 and August 2019.

5.9 Audit

Without prejudice to the obligations applicable to contracts concluded for the implementation

of this action, the Commission may, on the basis of a risk assessment, contract independent

audits or expenditure verification assignments for one or several contracts or agreements.

Indicatively, two contracts for audit services shall be concluded under two framework contracts

in November 2019.

5.10 Communication and visibility

Communication and visibility of the EU is a legal obligation for all external actions funded by

the EU.

This action shall contain communication and visibility measures which shall be based on a

specific Communication and Visibility Plan of the Action, to be elaborated at the start of

implementation and supported with the budget indicated in section 5.6 above.

In terms of legal obligations on communication and visibility, the measures shall be

implemented by the Commission, the partner country, contractors, grant beneficiaries and/or

entrusted entities. Appropriate contractual obligations shall be included in, respectively, the

financing agreement, procurement and grant contracts, and delegation agreements.

The Communication and Visibility Manual for European Union External Action shall be used

to establish the Communication and Visibility Plan of the Action and the appropriate

contractual obligation.