Scope and Limits of Public Private Partnerships in Pakistan-

the Political Economy of Education

International HRD Congress 1-2 October 2004, Islamabad

Attacking Poverty thru Public Private Partnerships

By Baela Raza Jamil

Chairperson

Idara-e-Taleem-o-Aagahi (ITA)

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Quotable Quotes…food for thought

"There is in our time no well educated literate population that is poor, there is no illiterate

population that is other than poor." —

John Kenneth Galbraith

"Public-private partnership models are a critical component for sustainable development."

2002 World Summit on Sustainable Development,Johannesburg,

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Section 1 : Historical Patterns.

The Political Economy of Education Private Partnerships are an old tested public policy instrument since 1854 in an

Imperial setting: Grants in Aid as conditional cash transfers(CTT) to educational enterprise in urban and rural areas ..

Up to 1972 in the post colonial phase grants in aid continued

1972-1977 : Nationalization..seduction of the common citizen, constituency building…. Equalizing education opportunities for all.. Islamic Socialism. Excluding partnerships through national state intervention. An unsustainable proposition in education

1979-1989 : Economic burden of poor quality nationalized education, dissatisfied polity. Invoking the private sector for secular and non-secular options . Legitimizing the praetorian state

1989-1999 : 1990 Jomtien “Education for All” commitments . .state experiments in Education Foundations and Civil Society Innovations.. Private sector mushrooms …lassez faire in education.. Experimentations with democracy and multiple partners

Post-1999 : Governance Crises and Poverty Challenge. Dakar 2000 EFA Goals and MDGs: Multiple macro-level responses including ESR and emergence of PPP Solutions .. Globalization, markets and partnerships (developing and developed countries) seeking the valued added from Govt, CSOs, Philanthropy and Corporate Social Responsibility (CSR) and in Pakistan legitimacy for a managed democracy ..

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The New State and Education Options

Three Roles of the New State

Financier

Regulator Facilitator

Negotiating Asymmetries between Equity and Privatization/private sector solutions through PPP Options and within Decentralized setting

An emerging role

As a providerfor public & non-state options

For Policies, Implementation & of Incentives for PPP…but uneven capacities

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Education Sector Reforms Action Plan 2001/2-2004/5

PPPs are seen as an underpinning and thrust area in ESR.

Measurable targets of PPPs, for example,

- Raising the number of PPPs from 200 institutions in 2000, to 16,000 in 2005.

Restructuring the Education Foundations into more autonomous institutions to promote PPP

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ESR: Access to Quality, Improved Service Delivery

Targets 2001-2005 Provision of incentive package for the private sector Involvement of the private sector in the management of under-utilized public

sector institutions Provision of grants and soft loans through restructured Education

Foundations Adopt School Program replicated across the country Community Participation Project (CPP) for school up-gradation in afternoon

shifts from primary to middle and middle to secondary and higher secondary levels.

Introduction of IT courses in schools / college through private sector under PPP

Access to public funds – 25% utilization of funds at district level through CCBs and PTAs

PPPs today in over 7000 + public sector schools. The number is growing. Government options for education provision through non-elite CSOs is growing and needs to be tapped more efficiently with higher returns to investment.

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Existing Educational Incentives for PPP and

Private Sector in Education Income Tax Exemption for teaching faculty and researchers]

Income Tax incentives for Charitable Donations

Exemption of custom duties and other taxes on import of education equipment

Provision of land free or on concessional rates in rural areas. Zoning in urban areas, zoning

Electricity (an gas) shall be provided on lowest domestic tariffs;

Provision of concessional financing for establishing rural schools through respective Education Foundations and credit through DFIs for social safety nets

Access to district development budgets through CCBs

(ESR : 2004) Limited Knowledge& dissemination. District Governments not aware about them and do not always facilitate implementation.

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Defining PPP PPP is a collaboration of government, communities, NGOs,

individuals and private sector, in the funding, management and operations to support education development in Pakistan.

A complementary role of all partners that enables them to maintain their identities and to draw out their respective comparative advantage.

Collaboration may be at : a) government learning sites /institutions, b) community sites, and c) private sector sites

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Section III : Instruments of PPP

There are Legal Instruments – Formal MoUs of many types : District Governments & their Education Departments Corporate Sector & Philanthropists NGOs- CSOs for intermediary support Adopted schools IT programmes CPP or upgradation in Afternoon Shifts Fellowship Schools Community Supported Schools

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Types of PPPs in education in Pakistan Initiated by the Government … Fellowship Schools, Community Supported

Schools, CPP school upgradation in afternoon shifts Setting up of Education Foundations Initiated by autonomous bodies: Education Foundations; National

Commission for Human Development, Pakistan Centre for Philanthropy (PCP)

Adopt A School, Community Supported Schools, Feeder Schools, School Improvement of Public and Private Schools

Initiated by CSOs (1) Home Schools(2) Adopt A School (2) Community Learning / Literacy Centers (using school premises / facilities)(3) Education Extension and Enrichment Programs(4) Creation of District Education Plans (DEPs)(5) District Agreements between District Governments and NGOs. Agreements for

partnerships to cover capacity building, service delivery and planning/budgeting is a post devolution phenomenon.

Initiated by the Corporate Sector School Improvement Programs through NGOs, themselves (other social sectors too), Scholarship merit programs for girls/women/disadvantaged (schools/colleges/universities), Art competitions and support Public service messages, special programs ..etc

Emerging corporate social responsibility, vision, focussed giving, performance and accountability driven

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Types of PPPs elsewhere Charter Schools: Leasing out govt. schools to nonprofit organizations

ation/groups or as a cooperative. .core support contd. by public sector

Magnet Schools – Excellence in Public Sector schools through PPPs .. Mobilizing funds from private sector

Vouchers for education.. Business, govt. and Development Partners funded to promote choice and quality

Ombudsman Educational Services's Alternative Education Programs for high school drop outs to prevent high social costs by disaffected youth

Learning solutions for public sector/private sector through university, experts, schools and corporate sector partnerships.

Contracting services to private sector in construction, procurements, etc.

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Section IV : Emerging Critiques Pseudo Legal Agreements: govt. and political leaders win, civil society and

private sector loose out in the event of violations..litigation is not feasible or desirable

Govt. becomes inertia ridden giving up on responsibility, seen as retreat of the state

Management is restricted under PPP for civil society partners

Education a devolved subject and policy/ program implementation depends upon the capacity and comprehension of the District Govts. On PPP Policy and Departments of Education regarding PPPs.

Low Institutional capacity for PPP and support for innovations by public sector

PPP and devolution: Local politics & political-bureaucratic tensions – particularly in City Districts and elsewhere makes PPP difficult

PPP exacerbates inequities as it tends to be more focused in well-off districts .. There are exceptions.. Thatta; Tharparkar (UNILEVER etc)

Union pressures on PPPs as usurping rights of teachers

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Critique Contd… PPPs are Inputs vs. outputs driven .. Adhoc and low Accountability

for performance

PPPs are being over-interpreted and implemented in programs in the absence of commensurate capacity and systems

Corporate sector intentions and citizens interest: Why the corporate sector wants to ‘invest’ in people and poverty reduction to more serious levels in term of clash of interest. As is well known sometimes PPP is a cover for corporate priorities which are anti-social or anti –poor,

Limited informed research to iteratively influence policies on PPP for poverty reduction.

PPP on government sites and with district governments is a tough challenge in which three different cultures of government, CSOs and private sector need to accommodate change

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Section V :

‘Conclusions Options for the Future Public sector provision may continue to operate sub-optimally, drifting towards privatization

withdrawing from public responsibility of quality education to disadvantaged groups… however examples of public sector effort such as PESRP in Punjab are emerging models of reversing this trend where government seeks to improve public sector service delivery. This province wide sector effort may be replicated

Major push for Capacity Building is needed to manage Public Private Partnerships ; Dissemination of policy, tools and specific skills in interpreting PPP policy, instruments, role of partners, conflict resolution skills, etc.

Single Point of Contact / Department in the Government to Implement PPP..

Corporate Sector, CSOs and Philanthropy have to date provided win-win solutions barring a few exceptions. All indicators on enrolment, teachers presence, achievements show improvements as well as quality

Exploring PPP school improvement programs more holistically and innovatively through area based or UC based options for a larger impact regenerating schools regenerating communities as learning communities

Resumption of Grant-in-Aid (GIA) a necessity today targeted towards the poor and under-provisioned areas

Creation of an Oversight Committee to Supervise the Implementation of the ESR’s PPP Initiative

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Contd… Contracting out selective services including capacity building and management

solutions to private sector/CSOs

Exploring innovative partnerships between industry, education and universities for improved learning solutions to both public and non-elite private sector.

Linking PPPs especially in highly intensive special zones, industry and agriculture with focus on partnerships for school improvement, provision, technical training and placements of youth in local industry

Better Cost-Sharing for CSOs who implement PPP supported more procatively through access to mainstream budgets and CCB grants.

Informed practice through systematic research and evaluation of impact of PPPs in poverty reduction programs. Resources to be put aside for this area of work under PRSP and also sector specific budgets at government level and also private sector

Role of Development Partners to be responsive, consistent, facilitating learning across countries for best practices

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PPP – From constraints to possibilities Transformation of the school system under decentralised conditions

(ALL FORMS INCLUDING PPP) may be an important way of improving rather than abandoning the public education system and addressing the rights of the poorest for quality education through innovative means.

Re-concepualization of PPPs, as abdication of the state to buffers for improved service delivery: The messy early phases of devolution with loosely coupled systems in public, political, and private spheres adjusting to new devolved realities, are neutralized by partnerships for poverty reduction. Public sector options must be fixed simultaneously for improving the quality of a public good.

"There is no magic bullet to achieve this; there is no alternative to relying on the time-consuming and trouble-torn democratic practices of mobilisation, organisation, advocacy, debate, protest and demand - in short, the assertion of citizenship rights." Manabi Majumdar, 2004 Fellow, Centre for Studies in Social Sciences, Kolkata.

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Introduction to Baela R.Jamil Baela Raza Jamil educated in education with public policy, quality education management

specialisms and economic history at the Institute of Education, SOAS, University of London, Georgia State University, and Harvard University (HIID) is based in Pakistan.

She is currently working in multiple capacities as Chairperson of Idara-e-Taleem-o-Aagahi (ITA or Centre for Education and Consciousness), Coordinator Alliance for Education Development and is adviser to several major district based education programs in Pakistan. She is the facilitator and co-designer of Pakistan’s Education Sector Reforms Action (ESR) Plan 2001-2005/6 and the EFA Plan, embedded in a sector wide approach, multi-level financing strategies through enabling partnerships. ESR and EFA are firmly integrated within the country’s PRSP.

Baela served earlier as Technical Adviser to the Ministry of Education. She has successfully advocated and facilitated policy shifts in public sector. These range from District-based education planning, to whole school improvement programs in under-performing government schools, extending their optimum use as ICT-based community learning centres in the afternoon, mobilizing local communities for addressing rights based education and lifelong learning needs. Altogether a thinker and practitioner, she is actively contributing to education public policy and practice on multiple fronts.