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ED/EPS/2006/RP/12e September 2006

Decentralization of Education in Pakistan

Country Report at the UNESCO Seminar on “EFA Implementation: Teacher and

Resource Management in the Context of Decentralization”

Administrative Staff College of India, Hyderabad, India, 6-8 January 2005

In this series: Country Reports: Egypt Indonesia Mozambique Nigeria Pakistan Thematic Reports: SIASAT

Education policies and strategies

UNESCO Seminar on

EFA Implementation: Teacher and Resource Management in the Context of

Decentralization

Administrative Staff College of India Hyderabad, India 6-8 January 2005

Organizer: UNESCO

This series carries in extenso the national report of the country representatives presented at the UNESCO Seminar on Implementing Education for All: Teacher and Resource Management in the Context of Decentralization, held in Hyderabad (India) from 6 to 8 January 2005. Organized by UNESCO, with assistance from the Administrative Staff College of India, Hyderabad, and the National Institute for Educational Planning and Administration, New Delhi, the seminar was attended by over fifty participants, including two national representatives from each of the E-9 countries (Bangladesh, Brazil, China, Egypt, India, Indonesia, Mexico, Nigeria and Pakistan) as well as Mozambique. Any part of this paper may be freely reproduced with the appropriate acknowledgement. The authors are responsible for the choice and presentation of the facts contained in this book and for the opinions expressed therein, which are not necessarily those of UNESCO and do not commit the Organization.

UNESCO expert, Abby Riddell, contributed to the planning and design of the seminar as well as the design and writing of this compendium volume. Published in 2006 by: Division of Educational Policies and Strategies United Nations Educational, Scientific and Cultural Organization 7, place de Fontenoy, 75352 Paris 07 SP (France) © UNESCO Website: http://www.unesco.org/education/eps/ Rubric: Experience Sharing

http://www.unesco.org/education/eps

Contents

Introduction...........................................................................................1 Context ......................................................................................................... 2 Common issues raised.................................................................................. 3 Acknowledgements ...................................................................................... 6

Decentralization of Education in Pakistan .........................................9 I. Introduction............................................................................................... 9

I.1. An Overview of Pakistan’s Education Reform ............................... 10 I.2. Decentralization of Education in Pakistan....................................... 14

II. Teacher Deployment and Management................................................. 16 II.1. Teacher Management ..................................................................... 16 II.2. Literacy Programmes Launched in Pakistan .................................. 18

III. Resources for Education ...................................................................... 24 III.1. Fiscal Transfers............................................................................. 25 III.2. New Financial Arrangements at District Level ............................ 25 III.3. Changes in Delegation of Financial Powers ................................. 26 III.4. Changes in Designation of Finances............................................. 27 III.5. Flexibility within Existing Budgets .............................................. 29 III.6. The Way the System Works – Resources ..................................... 30

IV. Lessons Learnt and Road Map for Sustaining Ongoing Reforms........ 34 IV.1. Decentralization Unit-MoE .......................................................... 34 IV.2. Symposium on International Experience with Decentralisation and Education ............................................................................................... 36 IV.3. Case Study on Fiscal Decentralization in Education .................... 36 IV.4. The Way Forward......................................................................... 38

Annexes ................................................................................................40 Annex 1: Report Guidelines....................................................................... 41 Annex 2: The Programme of the Seminar.................................................. 44

Abbreviations ADP Annual Development Programme AEO Assistant Education Officer AEPAM Academy of Educational Planning & Management AKU-IED Aga Khan University - Institute of Educational

Development CCB Citizen Community Board CIDA Canadian International Development Agency DCC District Coordinating Council DCO District Coordination Officer DDC District Development Committee DDEO Deputy District Education Officer DDO Deputy District Officer DEO District Education Officer DFID Department for International Development DOE Department of Education DOL Department of Literacy DSP Devolution Support Programme EDO Executive District Officer EDO-E Executive District Officer- Education EFA Education For All ESR Education Sector Reforms ESRA Education Sector Reforms Assistance Programme FANA Federally Administered Northern Areas FATA Federally Administered Tribal Areas GoodGEM Good Governance & Educational Management GST General Sales Tax HT Head Teacher ICT Islamabad Capital Territory KPP Khushhaal Pakistan Programme MNA Member National Assembly MPA Member Provincial Assembly MSU Multi-Donor Support Unit (World Bank) NEMIS National Educational Management Information

System NCHD National Commission for Human Development NFBE Non-Formal Basic Education NFC National Finance Commission NRB National Construction Bureau PITEs Provincial Institutes of Teacher Education

PLGO Punjab Local Government Ordinance PP President’s Programme PPP Public Private Partnership PRSP Poverty Reduction Strategy Paper PSDP Public Sector Development Programme PTSMC Parent Teacher School Management Committee SAP Social Action Programme SC School Council SMC School Management Committee TMA Town Municipal Authority TRC Teacher Resource Centre UNESCO United Nations Economic, Social and Cultural

Organization UNLD United Nations Literacy Decade

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Introduction The Dakar Framework for Action invited national governments to develop Plans of Action on Education for All (EFA) before the end of 2002. In response to this call, many countries have developed or strengthened existing sector plans for the achievement of EFA and have begun implementing them. However, experience has shown that at the time of developing their plans, some countries have had difficulties in defining workable strategies and translating them into clear-cut operational and reform actions. Delays have been due to lack of experience in the subject. UNESCO supports the strengthening of national capacities not only by providing countries with expertise, but also by facilitating exchanges of national experience among countries from different regions of the world. The dissemination of experience and good practice is one of the means of transferring technical know-how and skills and can help national managers to identify practical solutions which best answer the problems arising from their own education systems. The issue of governance and decentralization is one of the issues most frequently raised by country representatives and other stakeholders at various national and international events and is often referred to as one of the factors affecting the success of EFA implementation. This is particularly true in countries with federal systems and the E-9 countries, where governance is a major issue of concern within their decentralized administrative and institutional settings. Organizing an international seminar for these countries on the pressing issue of governance promotes not only South-South cooperation, facilitating the sharing of their experiences and best practices, but it also helps them to design and implement their own country-specific strategies for accelerating the achievement of EFA.

Teacher and Resource Management in the Context of Decentralization

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Context Decentralization has become a virtual mantra of development, emphasized increasingly as the market, as opposed to the state, has been allowed to exercise its influence on public policy. Taken to the extreme, this has entailed the privatization of formerly state-run activities such as health or education, but in between complete centralization and privatization are various types of decentralization. These have commonly and increasingly involved the use of performance assessment and results-based management as a means of exerting state influence while still allowing for multiple nodes of decision-making. Such assessment and management practices have thus become part of the panoply of tools that government uses to regulate an increasingly decentralized environment. Many different arguments are used in support of educational decentralization, not least to ensure that decisions made closest to the educational beneficiaries result in policies tailored to their particular contexts and requirements. Other arguments in support of decentralization stem from a desire to increase the efficiency and effectiveness of educational management. Large, cumbersome, centralized bureaucracies can be slow and unresponsive. Further arguments for decentralization are based on political expediency, to transfer the responsibility for educational decisions – and commonly, the accompanying finance – away from the national government. Thus, decentralization can be used as a means of supplementing inadequate national resources. Whatever the reasons behind educational decentralization, it is also important to distinguish between different types of decentralization. There are many patterns. Some involve merely a deconcentration of tasks, creating a regional office that mirrors the national ministry. Some involve the delegation of responsibility, where decisions taken at the centre are carried out by those delegated authority at a lower level. And other types of decentralization involve outright devolution, in which the responsibility for decision-making is transferred to a lower level. In addition, some educational decentralization involves all educational management and administration, while others focus on particular sections, allocating responsibility for different tasks to different levels of the administration. For example, teacher deployment and finance may remain at the centre while textbook ordering and distribution may be the responsibility of a local office. Two key areas of educational decentralization that have extensive ramifications for the achievement of EFA are teacher management and deployment; and financial resource generation and management. How

Introduction

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decisions are reached on the allocation of human and financial resources across the various levels of decentralization in different countries will have a major impact on the provision and quality of educational services. Whether district or regional education officers are empowered and enabled to make decisions concerning the targeting of key educational resources will contribute to the responsiveness of the education system to local conditions and needs and will influence the provision of quality education for all. Different countries have worked out different arrangements across the levels of responsibility for educational administration and management to deal with governance in these key areas. Some of the actual arrangements are highly dependent on particular contexts and inappropriate for replication elsewhere. For this reason, the seminar focused on governance and not merely on decentralization. The issues of common interest, whatever the nature of decentralization, concern how decisions are reached, based on what information, with what accountability, in turn based on what information. Analysis of the effectiveness of systems of governance is also of common interest: how are they judged to be effective? Does the system deliver on its promises and achieve its targets? And, finally, how have the capacities been developed of those staff given decentralized, governance responsibilities over teacher deployment and management and resource mobilization and management? An outline of the questions to be answered in each national report was distributed and formed the basis for the countries’ submissions (Annex 1). Common issues raised Four common issues can be identified across the reports prepared for the seminar: • weak fiscal decentralization; • compensatory role of central government; • rationalization of allocation and deployment of teachers; • school-based management.


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Weak fiscal decentralization The national reports describe various forms and contexts of decentralization – to states, to districts, to municipalities, and to local communities and school committees. Responsibilities and authority for delivering educational services at all these different levels vary considerably. However, an underlying issue concerns the sourcing of funds for any such services and the accompanying management of service delivery. The Indian national report states succinctly:

When decentralization in education takes the form of deconcentration, it is very difficult to ensure accountability of local administrative units and support structures.

Issues of control versus legitimacy are raised. If teachers’ salaries are paid by the state and not the local authorities, and if resource allocation decisions are made in the state capital, for example through conditional grants, how is the necessary accountability to the beneficiaries of the education provided at decentralized levels to be developed? The national reports also cover many different types of fiscal decentralization. Some countries use block grants; others, such as Bangladesh, earmark funds; some set financial norms for the percentage of fiscal revenue to go to education, and so on. Indeed, the Pakistan national report points out how incomplete decentralization to the district level, entailing mainly earmarked finance, has created too few delegated powers regarding resource allocation decision-making. The national report of Brazil also elaborates this point:

Unsuccessful results have involved the transfer of responsibilities without any guarantee of the necessary reallocation of financial resources. Such situations have reinforced proposals such as FUNDEB and its important redistributive characteristic, i.e. guaranteeing the transfer of financial resources, the key to reducing education inequalities in the country.

Compensatory role of central government The national reports describe various mechanisms used for equalizing resources in areas having weak fiscal capacities, for example financial transfers, which, like the block or conditional grants generally used, commonly take the form of transfers to regions according to specified minimum standards.

Introduction

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The Chinese national report well illustrates the different roles taken by central and state governments. Initially the policy shift to a socialist market economy resulted in a heavy burden on peasants who had to pay educational surtaxes as part of a drive for the diversification and mobilization of resources. The shift in responsibilities for resource mobilization to the counties re-established the compensatory role of central and state government, which subsidized poorer counties. In addition, several of the national reports describe the financial targeting as well as the differentiation of educational services of particular, marginalized groups. One of the implicit questions raised is what should be the role of the state – at whatever level – in subsidizing marginalized groups or regions, when such subsidies are by their nature economically inefficient and unlikely to be self-sustaining. Rationalization of allocation and deployment of teachers Without exception, all the national reports focused on the challenges that decentralization posed for rationalizing the allocation and deployment of teachers. This issue is closely related to teachers’ qualifications, status, support and professional development, and their integration within local communities. Notwithstanding the fact that bringing teacher management closer to the schools typically results in fewer delays in salary payments and the potential for enhanced local supervision and support, decentralization, in some countries, has created artificial barriers between states or districts, making it difficult if not impossible for states experiencing teacher shortages to draw on surplus teachers from other states. Additionally, as described in the Nigerian national report, the decentralization of teacher management has been clouded by ‘parochial and ethnic sentiments’, as well as poor supervision due to greater familiarity. The inability of many countries to afford the necessary complement of fully qualified teachers has led some, such as Indonesia, to implement zero-growth policies, while allowing the relaxation of qualifications and the hiring of contract teachers. This phenomenon appears as community or private provision such as PTA teachers in Nigeria, para-teachers in India, minban teachers in China, temporary teachers in Egypt, etc., and has wrought havoc with wage negotiations with teachers’ unions, given the different conditions of employment applied to such contracted, temporary teachers outside the civil service. Mexico’s decentralization has afforded a different pathway: it has included an


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element of state-level wage negotiation under more general, national agreements, together with a complex system of financial incentives for teachers that are tied to school progress as well as school performance factors. Particularly under wages and conditions of service that are insufficient for raising a family, teacher absenteeism, unsurprisingly, is another common issue discussed in many of the national reports, a partial answer to which leads to another common, important issue raised in most of the national reports: school-based management. School-based management School-based management – within many different decentralized state structures – is featured as a promising pathway exemplified by both state initiatives and pilot programmes of external development partners. In some countries direct resource allocations are made to schools (e.g. in Mexico, and in Mozambique, under the auspices of a World Bank project). In others, such as Indonesia, such resource transfers are envisaged in the long term. Community involvement of a different sort, that of tailoring curriculum, language development and specific courses to marginalized groups, is the focus of the two thematic reports prepared for the seminar. Acknowledgements The national representatives who participated in the seminar include Akhtary Khanam and Abdus Sattar (Bangladesh); Oroslinda Maria Taranto Goulart and Maria Isabel Azevedo Noronha (Brazil); Wang Libing and Zhu Xudong (China); Hisham Abdel Muniem Al Sayed Al Sankari and Salah Eldin Mohamed Shater (Egypt); Smt. Prerna Gulati and K. K. Biswal (India); Jalal Fasli and Ella Yulaelawati (Indonesia); Jose Gutierrez Garcia and Leticia Gabriela Landeros Aguirre (Mexico); Paula Maria Guiao de Mendonca and Moises Celestino Matavele (Mozambique); Charles Maduegbuna Anikweze and E. O. Oga (Nigeria); T. M. Qureshi and Mohammad Saleem (Pakistan). In addition, we were fortunate to have presentations from K. M. Acharya, Joint Secretary and Kumud Bansal, Secretary, Elementary Education and Literacy, Ministry of Human Resource Development, New Delhi; Y. S. Rajasekhara Reddy, Chief Minister, Mohan Kanda, Chief Secretary, and S. Chellappa, Principal Secretary (Education), State Government of Andhra Pradesh. Our thanks go to all, including the other report writers/presenters of the synthesis report and the two thematic reports: R. Govinda, National

Introduction

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Institute for Educational Planning and Administration, I. Subba Rao, Principal Secretary (Health, formerly Education), and Zahid Ali Khan, The Siasat Daily. Finally, we must thank the Administrative Staff College of India, S. K. Rao and Gautam Pingle for their contributions, not least to the logistics of the seminar itself. UNESCO expert, Abby Riddell, contributed to the planning and design of the seminar as well as the design and writing of this compendium volume. The originality of the seminar, which gave rise to the present publication, lies in creating a stimulating and rich dialogue between planners and administrators. This dialogue, although taken for granted, usually constitutes a stumbling block at local level where education administrators or civil service managers are the key coordinators of the implementation process. The latter are not always fully equipped to carry out this task effectively. The collaboration between the two national institutes, namely NIEPA based in Delhi and ASCI based in Hyderabad, provided the seminar with a broad combination of education planning expertise as well as corporate management and public administration techniques. The participation of media involved in educational programmes added a third and rich dimension. Though the seminar addressed issues common to the E9 countries, the experience of Mozambique in donor mobilization and coordination was highly appreciated. Through this publication, UNESCO hopes to disseminate more widely the lessons drawn from the experiences of the participating countries to specialists in other countries. The different contributions that we present here can play a part in nurturing useful reflection and debate to improve planning and implementation of education policies in other countries striving to overcome the challenge of attaining the goals of Education for All.

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Decentralization of Education in Pakistan

I. Introduction Pakistan comprises four provinces: Punjab, Sindh, North West Frontier Province (NWFP) and Balochistan, and some federal units, which include the Islamabad Capital Territory, Federally Administered Tribal Areas (FATA) and Northern Areas (FANA). Area-wise, Balochistan is the largest province with over 45 percent of the country’s area while almost one-half of the country’s population (146.248 million) lives in the province of Punjab. Administratively, Pakistan has a federal set-up. At the centre is the Federal Government which comprises several ministries and divisions. Each ministry or division is headed by a Secretary who, in turn, is responsible to the federal minister. The ministers form the federal cabinet, headed by the Prime Minister. A similar pattern of administration exists at the provincial level. A large number of federal ministries have their counterparts in the provinces which are known as departments. The colonial administrative pyramid, guided by the paradigm of bureaucratic control for managing dissent and mobilizing resources, consisted of well-structured geographical tiers. The colonial arrangements persisted for fifty-four years in Pakistan. Under the new structure, (from 2001, with the promulgation of the Local Government Ordinances, divisions, as an administrative unit in the province, have been abolished and district Governments have been installed for district-based planning, management and administration. There are a total of 102 districts in Pakistan and 13 agencies of FATA. Districts are further divided into 380 talukas or tehsils (sub-districts). The Local Government Ordinances 2001 paved the way for the establishment of a three-tier local government system comprising districts, tehsils and unions. Each tier of local government has its elected council and administration, and is headed by an elected Nazim. Thus the District Government has up to twelve administrative departments, a council and is headed by the District Nazim. Under the new system, administrations are accountable to elected councils and ultimately to the electorate. The new local government system is designed to take decision-making closer


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to the people. It ensures that planning and development are carried out in accordance with local needs. The system encourages community participation in governance. By taking government closer to the people, the devolved system also promotes transparency and accountability. The overall effect will be better service delivery and poverty alleviation (DSP, 2004). Elections for the new local governments were held in phases; most of the elected officials had assumed their positions by 14 August 2001. The Government of Pakistan has undertaken devolution to facilitate people-centred participation, greater accountability and transparency. As part of these overall reforms as stated in the Provincial Local Government Ordinance 2001 and reflected in the Education Sector Reforms Action Plan 2001 – 2005, the district rather than the province, has become the operational tier of governance and the focus of all development activity. The main purpose of devolution is to improve service delivery at the grassroots.

Figure 1: Pre-Devolution and Post-Devolution Scenario

Pre-Devolution –Administration Post –Devolution Classical Pyramid Flattening Federal Government Federal Province Provincial Government Division District Tehsil/sub-district Markaz Union Council PTAs/SMCs

As Figure I illustrates the Local Government Plan 2000 for devolution eliminated the “Division” and “Markaz” tiers from the administrative hierarchy, mediating the tiers within the district by Village Councils, Citizen Community Boards and PTAs/SMCs; whilst the latter two are emerging and ongoing, the village councils have yet to emerge (Jamil B.R. 2002). I.1. An Overview of Pakistan’s Education Reform According to the Constitution, education in Pakistan is a provincial subject. However, the administration of public education in the country is partly

District Sub-district/Tehsil Union Council Village Councils Citizen Community Boards PTAs/SMCs/School Councils

Case of Pakistan

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centralized, with the Federal Ministry of Education responsible not only for the development of policy statements and national plans and budgets but also for the overall curriculum development and standard of education. The policy, planning and coordination of major components of Education For All i.e. Non-formal Primary Education, Adult Literacy and Early Childhood Education is the responsibility of the Planning Wing of the Ministry of Education, whereas the implementing agencies are the Provincial Education Departments, District Governments and NGOs. Learning Achievement and training in essential skills (curricula, examination, evaluation, standard of education, learning/competency level, teacher training) are under the purview of the Curriculum Wing of Ministry of Education and the provincial line departments /organizations. Special Education and Social Welfare Division manages the education for the special persons/handicapped and children with special needs. The provincial Education Departments are headed by their respective Provincial Education Ministers. The civil servant in charge of the department is the Provincial Education Secretary. The provinces are further divided into districts for the purpose of administration. The head of the Education Department in a district is Executive District Officer (EDO) Education and head of the Literacy Department (in case of Punjab and Sindh only) is Executive District Literacy (EDO Literacy). In the Provinces of NWFP and Balochistan, literacy is part of Education Department. The hierarchy then runs down to the District Education Officer, Sub-district Education Officer, Supervisors or Assistant Sub-district Education Officers. At the grassroots level i.e. the union council level, Learning Coordinators (LCs) provide academic guidance as well as supervise the schools. The administrative structure has been decentralized under the Devolution Plan August 2000, which was enacted and promulgated on 14 August 2004. Primary Education Directorates, Village Education Committees/School Management Committees have been set up in the provinces at grassroots level. Elementary Education in Pakistan has three stages. The first stage is called Pre-Primary or Early Childhood Education i.e. Katchi, kindergarten etc. and covers children between 3-5 years old. The second stage, primary education, comprises 5 classes, I to V, for 5-10 year-olds. The third stage is a three-year middle stage, classes VI to VIII, for 10-13 year-olds. Secondary education is in two stages, for 13-16 year-olds, and for 16-18 year-olds. At the Federal level, there exists a Curriculum Wing in the Ministry of Education. In the provinces, Curriculum Bureaus and Text Book Boards exist


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as separate institutions whose activities are coordinated by the Federal Curriculum Wing. The syllabi are common to all the provinces and to that extent the curriculum is centralized. However, the provinces are free to interpret the outline of a course in view of the conditions existing in that province. The provincial Text Book Boards have the responsibility to develop and produce textbooks up to grade XII for their own province. A National Review Committee, represented by national and provincial experts, approves the scripts of textbooks produced by all Text Book Boards. Recently, a system of open competition for textbooks has been introduced. The medium of instruction at primary level is Urdu or a provincial/local language.

Examinations are generally held annually, and are the sole criterion to promote students to higher classes or to retain them in the same class. However, recently, a system of automatic promotion has been introduced in some schools up to grade III. Public examinations by the education department are held at the end of the fifth year, and at the end of grades. VIII, X and XII. Outstanding students can also compete for merit scholarships. Ninety Colleges of Elementary Education offer teachers’ training programmes for primary school teachers, 16 Colleges of Education offer graduate degrees for secondary school teachers, and 9 university departments train teachers at the master’s level. There are only 4 institutions, one in each province called Provincial Institute of Teacher Education (PITE), which offer in-service teachers’ training. Besides these, the Allama Iqbal Open University, Islamabad, offers a very comprehensive teachers’ training programme based on distance learning; its total enrolment is about 10,000 per annum of which 7,000 complete various courses every year. A summary of school core statistics and EFA data is presented in Tables 1 & 2.

Case of Pakistan

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Table 1: Comparison of School data for the year 2003-04 with 2002-03 Province/ Regions Years Schools Enrolment Teachers

2002-03 63,673 9,081,044 335,435 2003-04 63,320 9,294,824 298,665 Punjab

Difference -0.55% 2.4% -11.0% 2002-03 44,149 3,283,986 138,782 2003-04 44,149 3,515,244 138,782 Sindh

Difference 0.00% 7.0% 0.0% 2002-03 25,581 2,857,568 96,894 2003-04 25,580 3,195,790 97,173 NWFP

Difference 0.00% 11.8% 0.3% 2002-03 11,200 771,550 34,355 2003-04 11,417 813,763 37,699 Balochistan

Difference 7.00% 5.5% 9.7% 2002-03 5,951 564,724 23,599

2003-04 * 5,948 567,768 23,594 AJK Difference -0.05% 0.5% 0.0%

2002-03 1,590 140,484 4,942 2003-04 1,590 147,179 4,942 FANA

Difference 0.00% 4.8% 0.0% 2002-03 4,852 419,879 18,556 2003-04 4,882 496,076 18,442 FATA

Difference 0.62% 18.1% -0.6% 2002-03 395 157,873 5,737 2003-04 397 160,511 5,973 ICT

Difference 0.51% 1.7% 4.1% 2002-03 157,391 17,277,108 658,300 2003-04 157,283 18,191,155 625,270 Pakistan

Difference -0.07% 5.3% -5.0% * : Estimated figures ** : Provisional figures

Source: NEMIS, Academy of Educational Planning & Management, Islamabad

Detailed data on number of educational institutions, student enrolment and number of teachers, disaggregated by sex, is available at annex: I


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Table 2: SOME CORE EFA INDICATORS IN PAKISTAN

S. No Indicators Total Male Female GPI

(F/M) 1. Adult Literacy rate 15+ (%) 2000-04 41.5 53.4 28.5 0.53 2. Adult Illiterates 15+ (In Millions) 2000-04 51.536 60% 3. Youth Literacy Rate (15-24) (2000-04) 53.9 65.5 42.0 0.64 4. Youth Illiterates (15-24) (In Millions) (2000-04) 13,537 61% 5. Gross Enrolment Ratio (GER) In Pre-Primary

Education/ ECCE (%)(2001) 54.7 62.7 46.2 0.74

6. Gross Intake Rate (GIR) in Primary Education (%)(2001)

93.9 108.1 78.8 0.73

7. Enrolment in Primary Education (in Million) (2001) 14,562 41% 8. Gross Enrolment Ratio (GER) in Primary

Education (%) (2001) 73.2 83.7 62.0 0.74

9. Net Enrolment Ratio (NER) in Primary Education (%) (2001)

59.1 67.5 50.0 0.74

10. Out-of-School Children (In Million) (2001) 8.1446 3331.8 4812.7 11. Enrolment in Secondary Education (2001) (in 000) 5,790 38% 12. Enrolment in Technical and Vocational Education

(2001) (In 000) 83 17%

13. Gross Enrolment Ratio (GER) in Secondary Education (%) (2001)

23.9 28.6 18.9 0.66

14. Post Secondary Non-Tertiary Education(2001) 923.6 45% 15. Total Teacher Primary (000)(2001) 329.8 37% 16. Pupils / Teachers Ratio Primary (2001) 44 17. Total Public expenditure on education as % of GNP

(2001) 1.8

18. Total public expenditure on education as % of total Government expenditure (2001)

7.8

Source: EFA Global Monitoring Report 2005 UNESCO, Paris.

I.2. Decentralization of Education in Pakistan Some educationists contend that seeking legitimation through local government has been a recurrent pattern adopted by the military, as evidenced in Pakistan’s history. In 1959, Field Marshall Ayub Khan passed the Basic Democracies Order for Local Government reforms, devolving representation to the village level, to serve as an electoral college. In 1979, the Local Government Ordinance was promulgated by General Zia ul Haq to activate local governments. That move followed Bhutto’s experiment with Islamic Socialism; in which nationalization led to centralization and dilution of local councils (Baela R. Jamil, 2002). Influenced by the call for Education for All made at Jomtien (Thailand) in 1990, multiple democratic governments in Pakistan have attempted to broaden participation in education through mobilization of NGOs and communities. The focus was on issues of access, particularly for girls, and quality.

Case of Pakistan

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Numerous pilot programmes were initiated in hopes that model programmes would be created and implemented on a larger scale. Although community support often depended on government and donor financing, the private sector began to play a more active part at all levels of the education spectrum. Public policy in education began to consider the possibility of utilizing decentralization, privatization, and equity to “correct” the runaway state (sometimes also referred to as the “failed state”). However, some other educationists contend that devolution in Pakistan is occurring in the context of low educational attainment, poor coverage, and highly unequal access across income groups, between urban and rural populations, and between males and females, as a way of deflecting criticism away from the federal government.

Education decentralization is located, in fact, within Pakistan’s wide, macro-level reforms, including its poverty reduction strategy and its political, economic and social sector reforms. In the President’s speech at the Pakistan Human Development Forum in January 2002, he emphasized that ‘Education is the anchor of my economic revival strategy’ (ESR Action Plan, 2002). Education Sector Reforms Action Plan 2001-2005 is not a policy per se, but an Action Plan to implement the National Education Policy of 1998-2010. In fact, it is informed by the evolving national reforms, which include not only the devolution process, but also international events and initiatives. The ESR Action Plan has been developed to address the delivery gap and poverty reduction through education entitlements. It has six thrust areas: Literacy, UPE formal and non-formal, technical stream at secondary level, higher education, underpinned by quality and public private partnerships. Seventy percent of the ESR comprises the classical EFA areas of UPE, Adult Literacy and Early Childhood Education. A summary of additional financial allocations made under ESR Action Plan during 2001-2004 and its achievements may be seen at Annexes II & III respectively.


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II. Teacher Deployment and Management II.1. Teacher Management a. Responsibilities and Authority Level (Teachers) In Pakistan, the minimum academic qualifications required for teaching at primary level (grades I to V)/middle (grades VI to VIII) are Matriculation (10 years schooling) and a one year teaching course, called the PTC and twelve years schooling and a one year teaching course called the CT respectively. However, in the province of Punjab, a BA is the minimum academic qualification required for teaching primary education. District Government is responsible for hiring and firing of teachers, their promotion, usually on the basis of seniority, their transfer, as well as for , the appointment of Parent Teachers’ Association/School Management Councils etc. However, teachers’ pay scales are set by the Provincial Education Department, and the appointment of new teachers, BPS-16 and above, is made through the Federal and Provincial Public Service Commission. Teachers’ pay rises are regulated by Government policy, rarely mediated by the views of the Community Education Committee/Parent Teachers Association/School Management Councils. b. The Way the System Works – Teachers Pakistan has a well designed system and chain of accountability developed at the time of British Rule in the late nineteenth century and subsequently revised and modified periodically, to serve the needs of the country. Normally, 30-40 schools are supervised and accountable to such district/ tehsil/ taluka level Education Officers through their principals and Supervisors/Learning Coordinators. At the next level District Education Officers (DEO are accountable to Executive District Officers (Education), who in turn, are accountable to District Coordinating Officers (DCO) and the District Nazim on the one hand, and the Director of Public Instruction (DPI) and the Secretary of Education (ES) at provincial level, on the other hand. There is a separate Department for Adult Literacy and Non Formal Education in the province of Punjab headed by Executive District Officer- Literacy. . The present system of local government i.e. District Nazim, District Coordination Officer and Executive District Officer (Education and Literacy) was introduced in 2001 under the devolution plan. Although more than 90% teachers deployed in schools are academically and

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professionally qualified; yet they do not get enough chance for refresher courses on regular basis. Recently government has introduced Teacher Training Programme for in- service and on the job training of teachers which has improved the situation. Decentralized System is comparatively more effective. Under this system, education planning, management and monitoring/evaluation have been decentralized to district level. However, it has been observed that the new system is facing certain problems such as shortage of qualified personnel, facilities and services and ambiguity in functions, responsibility and authority, which will be hopefully addressed with the passage of time. The targets set in education and literacy, though ambitious, yet considerable progress has been made to achieve these targets despite many constraints. The system is evaluated on the basis of result of the promotion exams. Besides, research and evaluation studies and survey are also conducted to evaluate the system especially to assess the quality of education. Recently Punjab Education Department has developed a standard manual to evaluate system. Under the devolved system of education, accountability to beneficiaries and local groups has increased to some extent. There is a wider participation beyond the government. Number of Non Governmental Organizations (NGOs), International Development Partners, Support Organization such as National Commission for Human Development (NCHD), Deeni Madaris, Private Sector and individuals are taking active role in promotion of education and literacy in the country. Moreover, Education Foundations at federal and provincial levels have been established to promote education through Public Private Partnership (PPP). Information is gathered and used for the purposes of accountability through the Executive District Officer, Sub District Officer, Learning Coordinator/Supervisor and Head Teacher within Education Department. Whereas, outside the Education Department the information for accountability is collected through Village Education Committee/School Management Councils, Nazims and Councillors under local government as well as through media and public opinion. Recently a new system for monitoring and evaluation has been introduced in each district of Punjab for third validation and evaluation. In fact, the Devolution Plan in Pakistan was announced in August 2000 and corresponding enactment by the provinces made and its enforcement starting on 14th August 2001. Since then no impact study could be carried out. As such, it will be difficult to claim its effectiveness at this stage.


18

Pakistan has taken a number of initiatives to promote Education for All in the country. These inter alia, include:- • Preparation and launching of National Plan of Action on Education for

All 2001-2015. • Capacity building of the provinces and districts in Education For All. • Establishment of National, Provincial and District EFA Units and EFA

Forums. • Preparation of provincial and district level EFA Plans. • Provision of additional resources for promotion of Education For All. • Mobilization of Resources through International Development Partners. These initiatives have helped in launching EFA programmes as a movement throughout the country. However, the set targets could not be achieved mainly due to lack of adequate financial resources. Quality of Education is still a big challenge. Marginalized children are being reached under various programmes launched in the Public and Private Sectors. Deserving Children especially girls are given special incentives in the form of scholarships/stipends, exemption of school fee, edible oil, cooked meal and nutrition etc. As already mentioned, the devolution in Pakistan has been initiated in recent past for which impact evaluation / research studies could not be made so far. II.2. Literacy Programmes Launched in Pakistan A number of literacy programmes have been launched in Pakistan. However, most of them could not prove much effective due to various reasons. Main projects and programmes launched in Pakistan for adult literacy since 1990 are as follows. a. Eradication of Illiteracy from Selected Areas of Pakistan This project was launched by the Prime Minister's Literacy Commission, with a total cost of Rs. 72.83 million from 1992-94. The target was to make literate 174,460 adults (both male and female). The salient features of the project were as follows: • Opening of 3,460 face-to-face literacy centres and 200 TV literacy centres

in 5 selected districts i.e. Islamabad - Hafizabad – Karachi East - Quetta and Tehkal Bala.

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19

• Implementation through NGOs and community with strong motivational drive.

• Area specific approach. • Under this project 138,025 (79%) adult illiterates were made literate

against the target of 174,460. Out of these 120,082 (87%) were females and 17,943 (13%) males.

b. Quranic Literacy Project 1992-94 Knowledge has been highly esteemed in Islam. Seeking knowledge is the duty of every Muslim (man and woman). Islam stresses life long education. The last Prophet of Islam, Hazrat Muhammad (P.B.U.H) emphasized the pursuit of knowledge from the cradle to the grave. The first Quranic Ayah starts with the message Iqra (read). Motivated by the golden teachings of Islam, Pakistani women attach high importance and play an important role in learning and transmitting Islamic teachings and knowledge to the future generations. The most valuable contribution of Pakistani women especially the mother, is the teaching/learning of the Holy Quran which is the last Divine Book and the most comprehensive code of conduct of life. The subject project was initiated in 1992 with a cost of Rs.4.06 million to make females literate through their knowledge and reading skills of the Holy Quran. The project aimed to test as to whether the females who were able to read/recite Holy Quran could be made literate in Urdu with greater ease and in shorter time for which a special primer was introduced. The project was tested in five union councils in 4 districts surrounding Islamabad. 494 face-to-face centres were established, at places provided by the community. The teacher was paid honoraria of Rs.500 per month. Four cycles of 6 months each were completed. 10,867 female of 10+ age group were made literate through this project. The limitations of this programme are given below: - • Timetable arrangement sometimes kept some of the literacy teachers busy

throughout the day, as all the learners were not able to attend the centres at the same time.

• There was no incentive in any form for the learners, due to which dropout could not be checked.

• The rural community is too pre-occupied in marriage and death ceremonies, harvesting work, and festivals.

• Hence the total number of days attended by learners was not up to the required level, and their actual involvement in the learning process during the six-month cycle was much reduced in many cases.

• In one of the districts, parents hesitated in letting their girls learn the


20

writing skill although they let them learn the reading skill. c. Establishment of 10,000 Non Formal Basic Education Schools The Prime Minister’s Literacy Commission in 1995 formulated a project titled "Establishment of 10000 Non-formal Basic Education Schools" with the total cost of Rs. 1,263.375 million. The project, based on the idea of a home school to be run through NGOs and Cobs, was to be implemented within a period of five years. However, the project suffered due to financial constraints. The Education Policy (1998-2010) recommended to expand the programme to a larger scale, by opening 75,000 NOBEL Community Schools during the next three years. The Prime Minister of Pakistan, while announcing the national agenda, emphasized on Universal Literacy for children and constituted a committee for preparation of an Action Plan. The Action Plan also recommended the expansion of NOBEL Community Schools Programme. Realizing encouraging outcome of the project, the Federal Cabinet directed to revise the project by adding 75,000 NOBEL Schools. As such, the same PC-I has been revised as “Establishment of 82,000 NOBEL Schools”. ECNEC approved the expansion of the programme on July 11, 1998 from 7,000 to 82,000 NOBEL Community Schools with a total budget of Rs. 11214.898 million and the programme was included in the SAPP II. However, its expansion was to be made after an evaluation of the existing schools by the third party. Salient Features of the Project: • Basic Education Schools offer learning opportunities to those miss-

outs/drop-outs included under the age group of 6-14 years. • An educated person, preferably a trained PTC to be contracted for the task

against a fixed emolument of Rs.1,000/- per month. In case trained PTC teacher is not available at local/ village level, simple Matriculates are considered. In backward areas, the educational qualification is also relaxed.

• Teaching aids like black boards, charts, mats etc. for students are provided by the Government.

• Learning materials in the form of books, notebooks, pencils, slates etc. are supplied to learners free of cost.

• A condensed non-formal primary level basic education course has been developed for dropouts and out of school youth of age 10-14 and above. [Curriculum of formal primary school system is used for all fresh entering children of age 5-9.]

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• Preference has been given to the establishment of schools for females. • Final examinations are conducted by Examination Teams headed by

authorized representatives from District Education Offices. Graduates of Non-Formal Basic Education Schools are eligible for admission in 6th Class in formal schools.

• Schools function at places provided by the community free of charge. These may include public places, Mosques, community centres, buildings spared by philanthropists, or residence of teachers. For dropouts and missed-outs of 10-14 age group, existing school building can be used in the evening, wherever possible.

So far around 9000 Non formal Basic Education Schools have been established through out the country which hopefully will be increased to 40000 in next 2-3 years. Almost all the NOBEL schools are in Rural Areas or Urban Slums; 80% of teachers in these schools are female; and total enrolment is 320,387 with almost 31% MALE students & 69% FEMALE. This project has certainly helped in improving the access at primary level, which is evident from the following statistics:

Table 3: NOBEL Schools Data Sheet

Province/Area NGOs Schools Enrolment

Punjab Sindh NWFP Balochistan AJK FATA FANA ICT

Total:-

112303309------

07

190

5 0241 2271 618

5245735

127365

8 977

19 1534 36 810 59 576 14 327 1 514 1 856 3 820

10 950

320 387 A new project for opening of Non-formal Middle level schools has been prepared and being processed for approval. Allama Iqbal Open University has already established system of Non formal Education and distant learning last year, which will be evaluated on completion of first cycle/phase of the project. d. Crash Literacy Programme The Ministry of Education planned a Crash Literacy Programme in May 1998. The purpose of the programme was to increase participation rate by making maximum use of the available resources like school buildings and teachers


22

during summer vacations and evening hours. This programme was aimed at promoting literacy and basic education in the country. To make the programme cost effective, the existing school buildings with all the infrastructure of shelter and supplies were used to open literacy centres. The teachers who were qualified, trained and available during summer vacations (June - September, 1998) were engaged for the programme. They were paid nominal honorarium for this extra duty after a short orientation. The students were quite free from any obligation of school uniform and were provided with free textbooks and learning materials. The location of the centre was nearest to the majority of the beneficiaries/ out of school children. Salient Features of the Programme: The subject programme started in the Federal Areas of Islamabad and in the province of Punjab, as a pilot project. The salient features of the programme are as follows: - • Focus has been given to rural girls/female illiterates and also to provide a

second chance to out of school children within the age group of 6-14 years.

• Around 87 literacy centres opened in the Federal Area and 222 schools in the Province of Punjab.

• For each centre/ school services of a teacher were provided who was paid Rs. 1500/- per month as salary/honoraria in Federal areas and Rs. 1,000/- in Punjab.

• The syllabus prepared by Allama Iqbal Open University was selected for the course.

• Teaching/learning material was selected out of the literacy materials developed through National workshops as well as books and primers taught in formal schools.

• Literacy Teachers were given brief orientation/training for the purpose. • A literacy campaign was also launched to create awareness amongst the

target groups. • Students were paid Rs. 20/- per attendance as an incentive (in Punjab

only). • Learning material was provided free of cost. • Unit cost of the programme was around Rs. 1,899 per student.

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23

Output: • Federal Areas Programme: Under the Federal Areas Crash Literacy programme, about 87 literacy centres were opened in three phases. The total enrolment of these centres was around 1500. The assessment/evaluation test conducted by the Ministry indicated that 82% qualified/passed. Moreover, the literacy programme/campaign created awareness amongst the masses and local communities who were motivated to play an effective role in eradication of illiteracy. The total cost of the project was only Rs. 6.4 million. • Punjab Literacy Pilot Project: The Punjab programme was successful in terms of enrolment. A target of 5550 students was fixed and the Department was able to meet 96% of the target. In a few girls’ schools, enrolment exceeded the maximum number of 25 students per class and the girls in excess of the maximum limit attended the centre without any financial incentive. This showed encouraging prospects and so was the number of parents who were willing to send their children to formal schools after the Pilot Programme. Encouraged by the results of this programme, the Government of the Punjab is undertaking Phase II of the programme with a tenfold expansion. The target enrolment was 50,000 students, for which 1668 centres of 30 students each were opened. The honoraria of teachers were raised to Rs.1500/- with added financial incentives related with the results of the final examination. The monitoring system was strengthened and the course contents were revised. Expansion of the programme was considered in terms of enrolment and also in terms of the support from the community. The total cost of the project was Rs.10.5 million. e. Literacy Programmes by NGOs The programmes launched by NGOs in basic education and literacy at the provincial and local levels are in addition to the above. Some of the programmes run by well-established NGOs are reported to be very effective and productive. Non-governmental Organizations (NGOs) have been actively involved in the promotion of literacy and adult education since 1990. In 1992 the NGOs were involved in the project namely "Eradication of Illiteracy from the Selected


24

Areas of Pakistan". Thereafter, NGOs have been coming forward in the field of literacy and non-formal education. Adult Basic Education Society (ABES) and BUNYAD in Punjab. SHOAA in Balochistan and Khyber Welfare Association in NWFP were the NGOs, involved in the Pilot Literacy Projects of 1992. BUNYAD has opened number of literacy centres in Punjab and also got International Literacy Award. In 2001-02, a new programme for opening of Adult Literacy Centres was launched under Education Sector Reform (ESR) Programme. Around 13,000 Adult Literacy Centres have so far been opened throughout the country under this programme. It is comparatively more effective programme. Besides, a new project for promotion of functional literacy and skill development has been prepared which is likely to be launched soon. United Nations Literacy Decade (UNLD) is another programme sponsored by UNESCO and JICA, which is at the final stage of preparation. Private Sector Schools are expanding in Pakistan. However, it is expensive and beyond the reach of poor segments of population. At present, around 40,000 private institutions (Primary to University) are functioning throughout the country. Private Sector participation in educational development is 20-30 percent of the total. A number of successful innovations have been implemented in private sector for poor and middle class population. These include adopt-a-school program, Baithak School, maktab madarsa school, etc. Private schools established in the posh areas are better managed/monitored and evaluated. Resultantly, the quality of Education in such private schools for elites is generally better than Public Sector Schools. The quality of education of remaining private schools catering to the general public varies significantly. Since, Non-formal Basic Education Schools and Adult Literacy Centres (ALCs) are run by the NGOs under the supervision of Literacy and Non Formal Education Department; hence, Non-formal school teachers as well as literacy centre teachers are hired and fired by the Non Governmental Organizations (NGOs) in consultation with concerned education department. Firstly, it is very cost-effective approach. Secondly, it ensures availability of teachers at local level, even at far flung areas where certified teachers are not available. Thirdly, it ensures better monitoring system through public private system.

III. Resources for Education The ESR Action Plan has identified a variety of financing options for different programmes. These include:

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25

• Additional Budgetary Support for the Provinces in PSDP / ADP • Grants from Development Partners • Loans from Development Partners • Shift from recurrent to development expenditure • Shift within Development Budgets from other areas to ESR To some extent, these alternatives were previously available to provinces; districts are likely to have greater autonomy in expanding their choices post devolution. Administrative and financial powers of government functionaries are inextricably linked with the grade or category of the official carrying more weight than the administrative/ management responsibilities attached with a particular position. Areas identified for measuring aspects of fiscal devolution, therefore, include: • Fiscal transfers • New financial arrangements and options • Changes in delegation of financial powers • Shift in designation of finances i.e. development, non-development,

(recurring) etc., and • Flexibility for need based allocations within existing budgets. III.1. Fiscal Transfers There are two kinds of issues of relating to fiscal transfers; one, the fiscal transfer mechanism proposed by the National Reconstruction Bureau and two, procedures for release of funds to districts. The fiscal transfer mechanism is based on NFC Award, while the latter has currently been resolved with provincial governments making monthly releases of funds to districts since June 2002. III.2. New Financial Arrangements at District Level

Prior to devolution, all funds at the District level were channelled into one account. Account No.1 – technically a provincial account which included special grants e.g. from the President, Governor, etc. Unless funds placed in this account were utilized by the end of the financial year they reverted back to the province. Initially, the account was retained under devolution and the PSDP funds allocated to the districts were placed in it. With the setting up of


26

district governments a new Account No. 4, which is a District account, has been created under the Local Government Ordinance. It is non-lapsable and all finances generated at the district level or allocated to districts under special programmes/grants are placed in this account. The ESR/EFA funds, President’s Programme grant and the Khushhaal Pakistan Programme funds were allocated to this account. This has created flexibility in the utilization of funds.

While there is a Tehsil/Municipal Authority (TMA), currently these administrative units have no responsibility for education. In fact, the responsibility for all those schools that had been under the town/municipal authorities have been given to the district government. The same is the case with regard to the Union Councils. Consequently the responsibilities of the District Government have increased tremendously, for which additional resources are required, and the capacity of district governments for managing the requirements of financial devolution is critical to its success.

The District Coordinating Officer (DCO) is the Principal Accounting Officer. This is a new post created under devolution, which consolidates all financial powers at the district level. Prior to devolution each department reported to its relevant Secretary at the Provincial level. Similarly all accounts were also submitted through this channel. The DCO is accountable to the District Coordinating Council headed by the nazim. Similarly, the EDO-Education as compared to the DEO in the pre-devolution period is now answerable to the DCO at the district level.

III.3. Changes in Delegation of Financial Powers The Delegation of Powers under Financial Rules and the Powers of Re-appropriation of Rules 1962’ have been amended in the wake of devolution. Comparison of the pre and post devolution scenarios reflects that the authorization of funds has been devolved according to the category of the officer. This may be clarified as follows: • DCO is the principle accounting officer of the district. • EDO (Education) can now authorize expenditure up to Rs 600,000,

whereas before devolution the limit was Rs2,500, or up to Rs25,000 with a quotation before expenditure.

• DEO can expend the contingency grant used regularly according toneeds. There is no fixed amount for the DEO.

• Head Teacher (HT) can authorize expenditures from the school fund and also raise funds for the school from the community.

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• SMC monitors school finance.

The comprehensive comparative statement of delegation of financial powers, juxtaposed in Table 4, delineates the differences between pre-devolution and post-devolution powers of district based officers. III.4. Changes in Designation of Finances Decision making powers in connection with designation of finances including changes in the size of the tied/recurring expenditure – i.e. salaries and the development budget lie with the provincial government. There is no formula for the proportion of funds to be made available for development related activities which would have a direct impact on the quality of education. Under the current (recurring) expenditure there is provision of 10% contingent expenditure and this expenditure is usually used for non-salary items. Table 4: Comparative Statement of Delegation of Financial Powers

Extent S.

No Nature of Powers To Whom Delegated After Devolution Before

Devolution 1. Creation of posts Not

delegated

2. Abolition of posts Not delegated

3. Sanctioning Expenditure debatable to contingencies' (a)To sanction expenditure on items specifically shown in the budget estimates in details (b)To sanction expenditure in cases where lump sum budget provision or allocation of funds exists and individual items are not specified in details.

DCO EDO

Full Powers Each item not exceeding Rs. 2,000/-

Rs. 20,000/-

i) Local purchase of stationery DCO EDO

Full Powers Rs. 500/- at a time

Rs. 10,000/-

ii) Addition to or repairs of instruments and furniture DCO EDO

Full Powers Rs. 500/- at a time

Rs. 2,000/-

iii) Expenditure on rent of non- residential buildings and land.

DCO EDO

Full Power Rs. 400/- per month in each case (subject to recommendation of each case by district Assessment Committee)

Rs. 12,000/-

iv) Freight for movement of Government properly. DCO EDO

Full Power Rs. 400/- per month each case

Full Power

v) Electricity and water charges and taxes.

DCO EDO

Full Power Rs. 400/- per month

Full Power


28

Extent S. No Nature of Powers To Whom

Delegated After Devolution Before Devolution

each case vi) Hot and Cold Weather Charges DCO

EDO Full Power Rs. 400/- per month each case

Full Power

vii) Purchase of Liveries, Typewriters, Duplicators and bicycles.

DCO EDO

Full Power Rs. 4,000/- per month each case

Full Power

viii) Purchase of periodicals and Newspapers.

DCO EDO

Full Power Rs. 500/- per month each case

Full Power

ix) Purchase of books and maps DCO EDO

Full Power Rs. 1,000/- per month each case

Full Power

x) Law Charges DCO EDO

Full Power Rs. 2,000/- p.m. each case

Rs. 2,000/-

xi) Compensation payable to any individual under law rules or judgment of Courts

DCO EDO

Full Power Rs. 5,000/- at a time

Rs. 5,000/-

xii) Other items: (a) Non-recurring items. (b) Recurring Items.

DCO EDO

Full Power Rs. 5,000/- at a time Full Power Rs. 2,000/- at a time

Rs. 2,000/-

Rs. 500/-

4. Re-appropriation of Funds DCO EDO

Full Power (intra sectoral only) Rs. 10,000/- at a time

Nil

5. Powers to sanction and incur expenditure on repairs replacement, overhauling, etc., to the light machinery, mother vehicles and other tools and plants subject to the restrictions already existing.

DCO EDO

Full Power Rs. 4,000/- at a time

Full Power Rs. 25,000/- or 25% of bank value of the machinery which ever is less.

6. Powers of Administrative Approval to works DCO Up to Rs. 5 million. Rs. 5,000/- at a time

7. Powers to declare stores surplus DCO EDO

Full Power with prior consent of concerned provincial Secretary and Finance Department

Rs. 50,000/-

8. Power to sell surplus or unserviceable stores by auction.

DCO EDO

Full Power with prior consent of concerned provincial Secretary and Finance Department

Rs. 0.1 Million

9. To write off losses on account of negligence and fraud

DCO Full power with prior consent of concerned provincial Secretary and Finance Department. Report

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Extent S. No Nature of Powers To Whom

Delegated After Devolution Before Devolution

also to be sent to A.G.

10. To write off losses other than those due to negligence and fraud

DCO Full Power with prior consent of concerned Provincial Secretary and Finance Deptt

11. Approval of new development schemes DCO Upto Rs.5 million after approval by DDWG

Source: Decentralization Unit, MOE, Islamabad

III.5. Flexibility within Existing Budgets This includes, for example, reallocation within education, i.e. transferring posts. The new system is being developed to become flexible in a phased manner, as per capacity building of the district-based officers. It transpires from the foregoing that the: • District Coordination Officer (DCO) through a consultative process with

the districts officers allocates resources/ revenues for education activities in the District. Usually, no evaluation is made to find links between allocated resources and performance, shown by the school.

• EDO Education has been given powers/ authority for incurring expenditure, who runs the educational affairs of the district along with his team comprising District Officers (DO) and assistant development officers (ADO).

• Head teacher is the Chairperson of school management committee and makes all day to day decisions for smooth running of the school and its satisfactory performance. Therefore it is the head teacher who decides about affective utilization of revenue for efficient functioning of the school.

• SMC makes recommendations for provision and maintenance of physical/ instructional resources. Besides, PTA/ SMC also supervise the school, its finances as well as academic activities.

• After gaining some experience and having knowledge of promising practices by more efficient and dynamic district teams in the country, generation of funds can be expected by all districts.

• Normally, the accountability of the school team is upward (from higher officers i.e. ADO/ DO/ EDO- Edu/ EDO- Finance, DCO and PTA/ SMC as well, who assist in academic audit of the institution.

• An encouraging and bright aspect of new system is that the budgets after approval by the District Assembly, are transparent, and made available to


30

PTAs / SMCs / Citizenry. • The decentralization of financial resource mobilization and management

has been welcomed but the financial powers authorized to different functionaries are considered to be far below the actual needs required for the smooth/ efficient functioning of the schools.

• Capacity building programmes for different stakeholders at district level have been initiated to provide professional development for administrative, academic, financial managers in most of the districts and at cluster/provincial level. National Construction Bureau (NRB), Decentralization Support Programme (partly assisted by ADB) and some international agencies like European Union, DFID, ESRA, CIDA etc are supplementing GoP efforts in capacity building. National Commission on Human Development (NCHD) and Academy of Educational Planning and Management, MoE Islamabad under its GoodGEM Project are also running capacity building programme for district and sub-district based functionaries.

III.6. The Way the System Works – Resources Some understanding of the extent to which decentralization has improved school–based governance and the quality of education can be found in the evidence gathered in a recent policy implementation study carried out by the Ministry of Education in collaboration with UNESCO. The study addresses two key questions: firstly, the extent to which under fiscal devolution, resources and decision-making authority to utilize these resources has been devolved to school-based governance; and secondly the effectiveness of fiscal devolution on Quality Education for All (EFA). This pilot study, carried out in two selected districts of Punjab and Balochistan provinces, revealed the following initial responses to fiscal devolution. (Case Study on Fiscal Devolution in Education, 2003). For the first time the districts are deciding how much to spend on education vis-à-vis other public services for which they are responsible. In the education sector, district governments now have the lead responsibility in deciding where to locate new schools, and how to finance their construction, in addition to inspecting schools to ensure that they comply with standards and in carrying out the annual evaluation of teachers and head teachers. The EDO-Education is a new position at the district level with responsibility for the entire education sector as opposed to a particular branch within the sector. He/she is required to make decisions on the allocation of resources across branches and levels of education (Memon et al. July, 2002).

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At the request of the Ministry of Education-GoP, Multi-donor Support Unit (MSU), need-based technical assistance was offered to the provinces in articulating their reorganized education structures in the context of the devolution plan and its objectives. A series of meetings provided orientation for educational planners and managers from all over the country as well as an arena in which meaningful suggestions could be made to refine the devolution plan in education and to make it more responsive to local demands, particularly in the following areas: • Development of Framework for District Based Planning, Management

Supervision and Monitoring in Education Sector • Governance • Community Mobilization and Participation On the utilization of the block grant received by the districts, the procedure followed is that the EDO education makes proposals and identifies schemes which are submitted to the EDO Finance, who makes the budget by prioritizing schemes and sends it to the district assembly or the DDC which debates on the budget and approves it. At the school level, priorities are determined by the Head Teacher in consultation with other teachers. The Head Teachers are normally following the old hierarchal channel and submits his/her requirements to the DoE, which helps the DoE to indicate and pursue these schemes into annual development budget and get the approval of the district assembly. It appears that meetings of district coordinating council are conducted on regular basis. Since devolution, the District Coordinating Council is responsible for the nomination of the teachers. The DCC is headed by the Nazim and the DCO is the chairperson of the selection committee while EDO-E is a member of the committee. In most cases, the new structure of the education department has not been shared with the schools. Therefore, primary and middle schools are not aware of EDO-Es role especially in fiscal matters. The schools are mostly concerned with the DDEO who releases salaries to the schools. He also allocates contingency grants according to school demand. The SMCs/PTAs have been constituted in almost all levels of educational institutions in the country. At the elementary level, this consists of a Chairperson (Head Teacher/Head Master), one Secretary (One Senior Teacher/Second HT), one Co-signatory (parent), three Members (Parents) the Numberdar in rural area (a Councillor in urban area) and a Social worker


32

Retired Army Officers. The EDO-E is perceived as a disbursing authority as SMC grants are issued with his signature and he can out-rule the DDEO for example on blocking salaries. He can recommend allocations for grants to schools, prioritizes allocations and in general has an advisory role vis-à-vis the DDEO. The Study also reveals that there is some change in the flow of funds which are now also being provided for provision of furniture and other physical inputs. Recognition of the importance of learning materials is evident at the level of middle schools and is the result of specific projects. The school account is jointly operated by the Chairman and a co-signatory; however, the role of the latter is limited to signing the joint account after its approval by the SMC. For primary and middle schools, the SMC is the approving authority for the school budget which is given by the province – annual budget for learning and maintenance. It can also purchase materials in collaboration with the Head Teacher (chairperson), supervise development work and check the stock register - almost like an internal audit. According to the rules, the budget is made by the Head Teacher and presented to the SMC for approval. The role and responsibilities of SMC include increasing student enrolment, checking teacher attendance, operating school fund, generating local resources, monitoring progress and participating in monthly meetings. The Chairperson and co-signatory also sign vouchers of purchase and maintain the stock register. An annual audit is carried out by the provincial government. In reality, the school management committees have no functional role except for some involvement in school finance. The SMCs are not clear of their roles and responsibilities. In some districts, training has been arranged for members of SMCs/ PTAs. The SMCs role is more evident in primary schools, and 50% schools report active participation by the community. The SMCs have powers at all school levels regarding utilization of funds. Participation of SMCs has declined because of discouragement, lack of flexibility in utilizations and in determining school needs. Even for the Farogh-e-taleem fund the school councils have to follow the criteria laid down. Some sound and meaningful system of accountability is to be evolved. There is a lot of space to work in these fields so that the learning achievements of the students may be measured in a systematic and scientific way. Some more indicators are also required to be included/ developed for reliable accountability, on the basis of which the teachers, head teachers and their

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33

supervisory team may be rewarded. With the formation of PTAs/ SMCs, some foundation for accountability, (although not very strong) has been laid down, which is expected to grow/ gain power with the passage of time. Citizens Community Boards (CCBs) are being constituted to play their efficient role for fuller utilization of the opportunities and in improving accountability PTAs/ SMCs hold their meetings regularly and make some recommendations for improvement of the school efficiency or for rehabilitation of missing facilities are not implemented due to many reasons, mainly due to non availability of funds. One can safely expect that the capacity building programmes for district levels administrative/ academic/ financial managers, launched by NRB, NCHD, AEPAM would have certainly developed, become fruitful, but it would be too early to assess the effectiveness of these programmes, owing to two reasons: firstly, due to short span of time and secondly, because the indicators/ system for assessment are not in place. Quality EFA is the secondary issue, which comes after resolving the access/ UPE issue. The priority matter in the urban slums and rural parts of each districts is the UPE or 100% enrolment of all children of the primary school age group (5 > 10 years). The quality issue is basically the concern of upper income group population. The positive and important norm of quality education can become important when a district achieves significant level of gross enrolment rate (GER) and/ net enrolment rate (NER). The marginalized/ un-reached groups of population also deserved particular attention, majority of whom are still dreaming to be inside the school and get at least basic education. However, sufficient funds (ranging from Rs. 150 to 200 millions per year) are being allocated at the national level, which is transferred to all the four provinces, and four federating units for opening of non formal basic education schools.


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IV. Lessons Learnt and Road Map for Sustaining Ongoing Reforms

IV.1. Decentralization Unit-MoE As a follow up of Dakar Conference April 2000, the PNE Wing of the Ministry of Education was renamed as EFA Wing. In order to achieve EFA goals and strategies, EFA Unit and Decentralization Unit were established in the MoE at federal level. The focal person on Decentralization, and Technical Advisor-MoE held consultative meetings with the concerned officers in NRB and MSU which were followed by visits to Provincial education departments and one district in each province with the twin objectives of verifying needs of district level for capacity building and brain-storming on the design of capacity with a system oriented approach on the basis of existing initiatives in education. Accordingly, after consultation with the district and provincial governments, following capacity building needs of the district level stakeholders were identified in key areas (Capacity building would appear to be a catch-all) : a. Sensitization:

• Job description i.e. functions/responsibilities of officers/functionaries at district and sub-district levels is not clear, which needs to be made clear.

• The communities as well, have to be provided proper orientation as to how they can play their role in enhancement of education levels and standards.

b. Administrative Skills:

• Skills to carry out the assigned functions need to be imparted. • Skills for mobilizing all stakeholders, particularly local communities

in education planning. • Negotiation skills with political and bureaucratic functionaries at

various levels (district, provincial, federal).

c. Academic Skills: • DEOs/Deputy DEOs may be assigned academic audit of schools after

imparting necessary skills/training for it. • In-service Teacher training to be strengthened at district and sub-

district level for both government and private sectors. Currently training is centralized to provincial level.

• The envisaged National Education Assessment System (NEAS) can

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be successful only if proper training and local support is arranged. • Programming skills in functional literacy; introducing ECE;

Technical Stream at secondary level be arranged.

d. Planning & Financial Issues: • Planning for district based education plans, monitoring and

evaluation, and school based budgeting. • Teachers need skills of dealing with audit and the funds-utilization

procedure. Head teacher (BS-16) of all Middle Schools be empowered as Drawing Disbursing Officer. However, they need appropriate skills to deal with financial matters.

• Financial information/accounts should also be integrated with EMIS. • Online system should be introduced to make access to information,

monitoring and accountability easier. • Capacity building in undertaking Public Private Partnership (PPP)

innovations for education development for maximum collaboration between Public Sector, Private Sector and NGOs.

• Training in monitoring mechanisms for PRSP, EFA and ESR

e. Management Information System (MIS) Training: • EMIS needs strengthening at district level with direct accountability

to District Government (currently line manager at provincial level). Existing EMIS system is weak. Provincial EMIS Office obtains data from districts only once a year. The EMIS reporting system should be set-up at district level well integrated with Provincial and national EMIS, which may update the data on monthly basis and put it on their web-site.

• Feedback to policy makers through timely data collection and analysis.

In short, Ministry of Education is making efforts to provide both financial and technical support to provinces for capacity building opportunities. Academy of Educational, Planning and Management under its project Good-GEM has already undertaken capacity building of district based officers, utilizing the aforesaid identified needs and more than a dozen capacity building workshops have been organized not only at Islamabad but also in provincial headquarters and areas/regions.


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IV.2. Symposium on International Experience with Decentralisation and Education The World Bank, in collaboration with the Federal Ministry of Education, held a two-day symposium in Quetta, Pakistan, on June 8 and 9, 2001. The purpose of the symposium was to bring to Pakistan the findings of recently completed research on education decentralization (from various countries) and to discuss these in the light of Pakistan's devolution and decentralization plans. The symposium addressed four topics: • the division of responsibilities among the levels of government that would

best serve to improve the effectiveness of the education system; • the challenges and strategies for the implementation of education reforms

in an increasingly decentralized system of government; • the role of public and private schools and of other public, private and

community organizations in a decentralized education system; • how decentralization can improve the effectiveness of schools and thus

have a positive effect on student learning outcomes? The symposium was attended by more than one hundred people from all corners of Pakistan, ranging from newly elected Nazims, district, provincial and federal government officials, NGOs, private school operators, researchers and the media. The deliberations and discussions revealed that the devolution of political power and the decentralization of administrative responsibilities to districts and below is a brave initiative which presents Pakistan with a unique opportunity to improve education outcomes – access and learning. The full benefits of decentralization to have an impact on instructional quality will appear with the continued process of decentralization until it reaches to the school itself and to the community. IV.3. Case Study on Fiscal Decentralization in Education MoE and UNESCO-Paris Primary Education Section on Educational Governance commissioned a case study on “Fiscal Decentralization in Education at District levels, enabling School-Based Governance” was commissioned in late 2002. A national level Advisory/Steering Committee for the sake of participation quality, transparency and guidance was constituted. The selected consulting firm carried out the study. Main findings of the study and problems/challenges identified may be stated as under:-

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• The delegation of resources and decision making for use of the resources

has been made to the district but not to lower levels. All financial powers at the district level have been given to the principal accounting officer i.e. the District Coordinating Officer (DCO) - a new post created under devolution.

• There is some improvement in the accountability of government functionaries with all expenditures questioned in District Council meetings. And, frequent monitoring and inspection by civil and military functionaries has to some extent, increased teacher attendance.

• More involvement of citizens in planning, decision making and monitoring through their elected representatives at the three tiers of local government is opening up the system which before devolution was considered to be the sole purview of the education government.

• Problems are arising from unclear delegation of financial powers and rules of business between the province and the district as well as among different functionaries at the district level.

• The lack of coordination between implementation of federal ESR programme, and budget sources available at district and provincial levels. There is hardly any room for the districts to prioritize as the bulk of the budget is already earmarked for salaries

• With decentralization, decision-making authority, both administrative and financial, divided between the province and the district and at the district level, between the DCO and the EDO Education, the latter is now responsible for making district education plans but with less financial authority as compared to the previous DEO who was primarily an implementing authority.

• The sharing of power between the administrative and elected representatives has been regarded as another challenge. The increase in the number of functionaries at the district level has increased political interference in appointments, postings and transfers.

• Some formula or procedure needs to be developed to ensure that the more underdeveloped districts are able to access greater financial resources. Specific policies for addressing patriarchal structures hindering progress in women literacy and girls’ education also need to be formulated.

• Issues between the Provinces and the districts require attention. • Capacity building at all levels and of all appointed or elected

representatives is essential for the success of devolution, which in general is looked at positively by most people at the district level. However, people lack confidence, knowledge and expertise. School Management Committees (SMCs) need to be provided legal cover and more financial


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authorities. • Fiscal challenges: At district level, governments acquire greater authority,

they will be in a position to access resources not only from the Federal/ Provincial government but from international donors and development partners. To achieve EFA goals, extra resources will also be needed for district with low literacy, poor primary enrolment and high gender disparities. Monitoring guidelines should be developed for district government to enable them to allocate resources keeping in view principles of equity and constraints at sub district level.

• The authority of the Head Teacher needs to be enhanced with increased flexibility in utilizing the school grant. Grants to primary schools

• The weakest link in the fiscal chain is the Citizen Community Board, which while qualifying for receiving ADP funds for undertaking development work is unable to come up with 20% matching funds to qualify for registration and funds allocation.

• The School Management Committee (SMC) is facility based but lacks legal cover and enhanced financial authority including authority for school construction and repairs. Membership of SMCs representing school clusters on CCBs and capacity building of both levels of organizations should enable quality enforcement in EFA.

IV.4. The Way Forward • The most important is to conduct an impact evaluation study to assess the

effectiveness and productivity of devolution plan. For the purpose true representative sample approach covering all districts of the country should be adopted.

• The study should cover all the different aspects of new system i.e.

administrative, academic and financial. • Based on the finding of impact evaluation study result, constraints and

bottlenecks should be removed to make the decentralized system effective and efficient.

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References

1. Academy of Educational Planning and Management, NEMIS-Pakistan School Education Statistics 2002-03 and 2003-2004.

2. Census of Population 1998, Government of Pakistan. 3. Devolution and Decentralization: Identification of Progress in Implementation in Education,

MSU, January 2002. 4. Donald Winkler and Randy Hatfield, “The Devolution of Education in Pakistan”, in Research

and Policy Dialogues on Key Issues in Education: Decentralization. IED, July 2002, Islamabad.

5. Draft PRSP (Summarized Version) for discussion only, PRSP Secretariat, Ministry of Finance, Government of Pakistan, May 2003.

6. Education Decentralization, Government of NWFP, Schools & Literacy Department, Presentation during IED-AKU Policy Dialogue, July 2002 Islamabad.

7. Education Sector Reforms Action Plan 2001-2004, Government of Pakistan, Ministry of Education. December 2001.

8. Faryal Khan “Community Participation in School Management in Developing Countries: Who participates and how?”

9. Jamil, B.R. “Decentralization and Devolution: Educational Implications of the Praetorian Interpretation” 2002.

10. Memon et al. “Decentralization of the Education System in Sindh; A Critical Review” in Research and Policy Dialogues on Key Issues in Education: Decentralization. IED-AKU, July 2002, Islamabad.

11. Qureshi, T. M. “Decentralization in Education in Pakistan & Capacity Building” April, 2004 MoE Islamabad.

12. UNESCO 2004, EFA Global Monitoring Report 2005, Paris. 13. Website of Decentralization Support Programme, GoP. 14. Website of Government of Pakistan. 15. Zafar, Fareeha “Fiscal Devolution in Education-Case Study Reflecting Initial Responses”,

Government of Pakistan, Ministry of Education and UNESCO, Islamabad July, 2003.


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Annexes

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Annex 1: Report Guidelines 1. Country background (a) Brief synopsis of education system: structure, institutional

organization and management; any recent or ongoing reforms; arrangements for providing learning opportunities for youth and adults.

(b) Nature of decentralization – broad strokes including political, economic and social context.

(c) The EFA challenge: current educational statistics pertinent to EFA goals and progress achieved.

(d) EFA plans: vision and modalities; how existing governance structures have helped to accelerate the pace and quality of EFA implementation.

(e) Reliance on external funds: percentage of education budget/expenditure; amounts, sources, types, use; recurrent versus development expenditure.

2. Teachers (a) Description of responsibilities and authority levels:

(i) Who determines the qualifications for education personnel? (ii) Who actually hires and fires? (iii) Who can transfer teachers? (iv) Who sets the pay scale? (v) Who determines increases and promotions?

(b) The way the system works: (i) Who is accountable (and to whom) and what is the system of accountability? What is measured? Has accountability increased to beneficiaries/local groups? Is there wider participation beyond government? (ii) How is information gathered and used for the purposes of accountability? (iii) Capacities and professional development – how developed – effective? (iv) Effectiveness and efficiency of system in delivering quality EFA:

1. Is the quality of education improving? 2. Have targets been met? Are they likely to be? Why/why not? 3. Are differentiated needs being met? 4. Are the marginalized being reached? 5. What about non-formal education? Private education? What arrangements concerning teacher deployment and management?


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3. Resources (a) Description of responsibilities and authority levels in answer to

questions – resources: (i) Who decides about sources of funds? (ii) Who decides how much revenue? (iii) Who decides the allocation or budgeting of revenue? (iv) Who decides about actual spending?

(b) The way the system works: (i) Who is accountable and what is the system of accountability? What is measured? Has accountability increased to beneficiaries/local groups? Is there wider participation beyond government? (ii) How is information gathered and used for the purposes of accountability? (iii) Capacities and professional development – how developed – effective? (iv) Effectiveness and efficiency of system in delivering quality EFA:

1. Has resource allocation changed as a result of decentralization? How has this impacted EFA goals? 2. Is the quality of education improving? 3. Have targets been met? Are they likely to be? Why/why not? 4. Are differentiated needs being met? 5. Are the marginalized being reached? 6. What about non-formal education? Private education? What arrangements concerning resource allocation and management?

(v) What effect has extrabudgetary finance had on EFA implementation? How is it directed and utilized? Is its implementation different from the prevailing system, for instance, its use for recurrent or development expenditure, its control, monitoring and evaluation? (vi) Have communities or the private sector been encouraged to mobilize financial resources? What are the arrangements and have these worked to further effective EFA implementation?

4. Analysis of successes and pitfalls (i) What differences has the decentralized system – teacher deployment and management and resource mobilization and management – made to EFA implementation? (ii) Has there been increased local accountability/ participation? (iii) What has worked? What has not worked? Why? (iv) Specifically, have teacher recruitment, deployment, training and performance monitoring practices significantly contributed to:

1. Greater teacher motivation

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2. Enhanced professional competence 3. Enriched working environment 4. Better school-community interaction

(v) Specifically, has the timeliness and adequacy of fund flow improved and has this made a difference to the quality of service delivery at the school level?

5. Lessons Following the critical analysis above of why the system works in the way described – whether effectively or ineffectively – it is important to consider how the reforms in teacher deployment and resource mobilization and management were initiated, internalized and sustained. It would be particularly helpful if the reports focused on how the effectiveness of the system is being measured, what capacity building has been or is still required, how needs have been identified for improving the system (of teacher and financial deployment and management), and whether the attempts to address those needs have been sufficient and/or appropriate. This will enable the focus to be on the final two issues below: (a) Lessons learned; (b) Road map for sustaining ongoing reforms.


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Annex 2: The Programme of the Seminar UNESCO Seminar on EFA Implementation: Teacher and Resource

Management in the Context of Decentralization 6–8 January 2005

6 JANUARY 2005 8:00 Registration of Participants 9:00 Welcome Remarks by Dr S. K. Rao, Principal, ASCI 9:10 Theme Setting by Dr Mir Asghar Husain, Director, ED/EPS, UNESCO, Paris 9:30 Inaugural Address by Dr Y. S. Rajasekhara Reddy, Chief Minister of Andhra Pradesh 9:50 Vote of Thanks by Dr Abby Riddell, Senior Programme Specialist, ED/EPS,

UNESCO, Paris 10:00 UNESCO High Tea 11:00 Synthesis Paper Presentation on Ten Countries: Dr R. Govinda, National Institute for

Educational Planning and Administration (NIEPA) 12:00 Plenary Questions to NIEPA and Country Representatives 1:00 Lunch 2:00 Working Groups on Identified Problem Areas: Designation and Discussion/ Sharing of

National Experiences 3:30 Tea 4:00 Panel Presentations by two Indian States: Andhra Pradesh and Uttar Pradesh on

Teacher Deployment and Resource Management at State Level; Comments by National Participants: India, China, Brazil and Pakistan

5:00 Plenary Discussion on Issues Raised in Panel Presentations 6:00 Close 6:30 Cocktails by ASCI at ASCI campus, Bella Vista, Khairtabad, Hyderabad 8:00 Andhra Pradesh State Reception at Jubilee Hall, Nampally, Hyderabad 7 JANUARY 2005 9:00 Report Presentation and Plenary Discussion on Populations in Tribal Areas: Dr I. V.

Subba Rao, Principal Secretary, Andhra Pradesh 10:30 Coffee 11:00 Report Presentation and Plenary Discussion on Women from Poorer Sections of Indian

Society: by Mr Zahid Ali Khan, Siasat

12:30 Lunch 1:30 Tasks for afternoon explained; three Working Groups on (1) Teacher Deployment and

Management; (2) Resource Management; and (3) Capacity Building Lessons (Tea served during working group sessions)

3:30 Report back from Working Groups 5:00 Close 8:00 Siasat Reception at Taramati Baradari, Golconda Fort, Hyderabad

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8 JANUARY 2005 9:00 Moving Beyond the ‘Issues’ to the Problem Areas Requiring Attention: Identification

of Potential Assistance? – Plenary followed by Working Groups 11:00 Report back: The Way Forward 11:45 High Tea 12:15 Valedictory Addresses:

Dr S. K. Rao, Principal, ASCI Dr Mir Asghar Husain, Director, ED/EPS, UNESCO, Paris Mr K. M. Acharya, Joint Secretary, Ministry of Human Resource Development, Government of India Dr Mohan Kanda, Chief Secretary, Government of Andhra Pradesh, India Vote of Thanks, Mrs Leticia Aguirre, Ministry of Public Education, Mexico

1:15 Lunch

Documents

Decentralization of Education in Pakistan - UNESCOunesdoc.unesco.org/images/0014/001471/147130E.pdf · in Pakistan Country Report at ... GoodGEM Good Governance ... national and international