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Empowering You Through Knowledge

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PERFORMANCE OF PUBLIC-PRIVATE PARTNERSHIPS IN DELIVERING SOCIAL

SERVICES: THE CASE OF UNIVERSAL SECONDARY EDUCATION POLICY

IMPLEMENTATION IN UGANDA

M. Barungi, J. Wokadala & I. Kasirye

Uganda Evaluation Week 2015, International Conference

Hotel Africana, Kampala, 12th – 13th March 2015


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CONTENT

Background MethodologyFindings & Conclusion

Options for policy

consideration


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BACKGROUND

GoU initiated USE policy in 2007 - to consolidate UPE gains & ensure

equitable access to secondary education for all eligible students regardless

of their socio-economic background.

Implementation of USE policy heavily relies on the partnership between

MoES & selected privately owned secondary schools – “USE PPP”

The USE PPP is largely driven by limited public secondary school

infrastructure, which would otherwise limit access to all qualifying children.

MoES chooses private secondary schools to partner with & an MoU is

signed with them to ensure that they comply with USE policy’s

implementation guidelines.


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WHY PPP IN EDUCATION SERVICE PROVISION?

1) Public funding of private schools is justified by the argument that poor students will benefit from the opportunity to enroll in private schools of superior quality than the public schools that would otherwise be their only option.

2) Contracting out education services enables Gov’ts to quickly expand access without incurring any up-front expenditures on constructing & equipping new schools.


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LOW SECONDARY SCHOOL ENROLMENT

Despite the introduction of USE, enrolment for secondary education remains low - below 30 percent.

It should be recognised that the attainment of the USE policy objective depends on how well the actors in the USE PPP press towards the goal.

Therefore, we provide insights into the performance of the USE PPP.

GER rates in secondary schools

Source: Education Management Information System 2000 -2012

0

5

10

15

20

25

30

35

20

00

20

01

20

02

20

03

20

04

20

05

20

06

20

07

20

08

20

09

20

10

20

11

20

12

GR

OS

S E

NR

OLM

EN

T (

%)

All Boys Girls


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LINK BETWEEN PERFORMANCE OF THE USE PPP & ATTAINMENT OF THE POLICY OBJECTIVE

Attributes of good PPP performance

• Relevant

• Effective

• Efficient

• Sustainable

• Participation

• Accountability

Successful implementation of the USE policy

• All stakeholders (Government, private schools, parents, etc) fulfil their mandates.

• Effective monitoring and evaluation of policy implementation.

Increased and equitable access to secondary education

• Increased enrolment

• Reduced dropout

• Increased completion


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DATA AND SOURCES

Secondary data - Education Management Information System (EMIS)

Primary data – collected in June 2013 from a survey of 61 private USE schools in Arua (11), Iganga (18), Kibaale (9) & Luwero (23).

Respondents in the collection of primary data include: Sch. Directors, Headteachers, Chairpersons B.O.Gs, & Bursars.


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DATA ANALYSIS: INTEGRATED FRAMEWORK FOR ASSESSING PUBLIC-PRIVATE PARTNERSHIPS – BY LUND-THOMSEN (2007)

The analytical framework adapted for this study is a modification of the OECD’s standard aid evaluation criteria, which assesses PPP performance, based on five criteria namely relevance, effectiveness, efficiency, impact and sustainability.

However, the integrated framework looks at Seven criteria namely: 1) Relevance, 2) Effectiveness, 3) Efficiency, 4) Impact, 5) Sustainability, 6) participation, & 7) Accountability.

During the assessment, for each criterion, the respondent is asked to discuss with examples, a set of four questions/issues.

Based on the information provided by the respondent, the enumerator, makes an objective assessment of each criterion & assigns numbers 1-3 ; where 1 =True; 2 = True but to a less extent; & 3 = Not true.


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INTEGRATED FRAMEWORK FOR ASSESSING PPPS

Criterion Discussion points

Relevance

Clarity of partnership objective(s) & whether the PPP

objectives are in line with those of the partnering institutions.

whether the PPP objectives meet the perceived needs of the

stakeholders;

whether the stakeholders are supportive to the realization of

the PPP objectives.

Effectiveness

o whether the PPP has yielded the intended objectives.

o whether the achievement of the intended objective is indeed

remarkable

o whether the PPP is being implemented as per the guidelines.

o whether the stakeholders are satisfied with the

outputs/outcomes of the partnership.


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Efficiency

whether the public financial contribution is adequate

whether the private partners are using the available resources

optimally

Whether the private partners have adequate resources to enable

them implement the activities of the PPP

Impact

o Whether the PPP has yielded un-intended consequences

o Whether the PPP has co-opted stakeholders

o Whether in the PPP regulatory efforts are respected

o Whether the PPP has an effective monitoring & enforcement system.

Sustainability

• whether the PPP achievements are sustainable in the long run

• whether the PPP can financially sustain itself

• whether the organizational structures created through the PPP will

continue to exist.


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Participation

whether the intended beneficiaries of PPPs

have had any influence on the design,

implementation, monitoring and evaluation of

PPP initiatives.

Accountability

o whether there are internal checks and

balances in the PPP that can be used to

guide the conduct of its participants and

enforce agreed-upon rules.


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RELEVANCE OF THE USE PPP

Nearly 77% of the Headteachers s are fully aware of the objective of partnering with MoES, which is to increase access to secondary education.

Headteachers are satisfied with the USE support in terms of capitation grant and the teaching resources.

capitation grant – received in lump sum, which enables school management to pay teachers’ salaries, expand and establish new infrastructure, and undertake other activities as per their work plans.

Non-monetary support, e.g. textbooks for mandatory subjects, teachers’ guides, in-service training of teachers, English dictionaries and pronunciation CDs, and laboratory equipment and chemicals.


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RELEVANCE OF THE USE PPP …Stakeholders are to some extent supportive to the realization of the objective of the USE policy.

Parents:

oTake and register their eligible students at school,

osome contribute to their children’s feeding by either paying lunch fees in cash or in kind,

oothers provide school uniforms and scholastic materials to their children,

omany parents voluntarily contribute towards the purchase of laboratory chemicals & apparatus, & construction of more school buildings.

Political leaders:

oSome MPs actively participate in school fund raising activities to support infrastructural developments.

oGISOs &DISOs monitor programme implementation


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EFFECTIVENESS OF THE USE PPP

About 74% of headteachers agreed that the USE PPP has yielded substantial increments in school enrolments

Contribution (%) of USE to O’ level enrolment 2007 - 2012

0

100

200

300

400

500

600

700

800

20

00

20

01

20

02

20

03

20

04

20

05

20

06

20

07

20

08

20

09

20

10

20

11

20

12

Nu

mb

er o

f s

tu

de

nts

('0

00

)

Boys Girls

17 29

38 49 55 60

83 71

62 51 45 40

2007 2008 2009 2010 2011 2012

USE Non-USE


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EFFECTIVENESS OF THE USE PPP …

Evidence of adherence to PPP guidelines e.g.

All schools had certificates of accountability

All schools had set up Boards of Governors

All schools were admitted only eligible students.

Non-compliance to some extent e.g.

oObserved that some schools were not displaying on their notice boards the funds received as USE capitation grants

oMany Headteachers admitted that they disregarded expenditure guidelines especially the allocation to teacher’s salaries


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HOW EFFICIENT IS THE USE PPP?

Inadequate public financial contribution

3/4 of the Headteachers reported that capitation grant is inadequate & has remained fixed at UGX47, 000 per student per term.

Late release of funds - some schools reportedly borrow money from either friends or banks (at high interest rate) to clear their bills.

Sub-optimal use of resources by private partners – driven by limited infrastructure

With increasing # of students enrolling, there is overcrowding in streams -number of students per stream above 60, the permissible ceiling.

Improper storage and display of textbooks, and laboratory chemicals and apparatus.


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IMPACT - 67% OF THE RESPONDENTS REPORTED THAT THE USE PPP HAS YIELDED MIXED AND UNEXPECTED CONSEQUENCES

Positive outcomes

Employment creation as a result of the need for additional teaching and non-teaching staff

Significant reduction in the cost of looking for students as well as the burden of school fees collection

Increased ease of implementing schools’ work plans – since the money comes as a lump sum

increased access to information;

ease of registration with UNEB –this is paid for under USE set up.

Negative outcomes

Poor performance in UCE exams -partly attributed to relaxed S.1 entry requirements and automatic promotion policy

Deviant behaviour among students -the law abolished corporal punishment - this has led to rampant student

Increased irresponsibility among some parents with the misconception that government USE grant caters

for all school requirements.


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IMPACT …

Disregard of implementation guidelines, especially in the area of financial management

“The school USE Bank Account shall be opened and administered by the Chair person Board of Governors and the Headteacher”

However, many Headteachers complained that the school Proprietors often hijack this role & do not spend the grant as per the approved budgets.

All schools are regularly (at least twice a year) monitored & about 78% of the headteachers reported that they receive evaluation reports as feedback from the inspection/monitoring visits.


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SUSTAINABILITY OF THE USE PPP

Sustainable achievement: Trends seem to suggests that the USE PPP is able to achieve & sustain high O’level completion rates.

Source: Education Management Information System (EMIS) 2000 - 2012

18

2325

20

28

34 33

39 3942

45

48

52

14

19 1917

22

26 25

31 31 31 32 33 34

0

10

20

30

40

50

60

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

Com

ple

tion r

ate

(%

)

Boys Girls

PRE-USE POST USE


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SUSTAINABILITY OF THE USE PPP …

Financial sustainability - sustainable flow despite being insufficient

MoFPED annually allocates funds for USE programme

Private USE schools raise additional funds through tuition fees paid by the purely self-sponsored students & other charges (e.g. development fee) that are paid by both USE & non-USE students.

Existence of organizational structures, specifically created to play an oversight role.

every private USE school had this governance structure in place to;

oensure expending of USE grant as per the guidelines and

omonitor the implementation of USE


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PARTICIPATION OF STAKEHOLDERS IN THE USE PPP

Stakeholders e.g. school proprietors, teachers, members of BoGs, & PTAs were consulted before signing the MoU.

Three quarters of the Headteachers believe that stakeholders have an influence on USE policy implementation. E.g.

S

Parents, local, religious & political leaders are usually invited to schools to make decisions regarding, e.g.

o how much fees to charge on USE students;

ohow to provide students with lunch

oorganizing fundraising functions for a particular cause

orecruitment of new staff, etc.

About 66% of Headteachers agree that teachers & parents have taken their own initiative to monitor USE PPP activities.


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ACCOUNTABILITY IN THE USE PPP

There is a system in place to guide the conduct of people or institutions participating in the partnership.

MoES (2007). Policy and Operational Arrangements for Implementation of Universal Secondary Education (USE).

Despite the existence of systems for accountability, to an extent power is abused by the school proprietors.

E.g. some Headteachers have little knowledge of USE funds received by their respective school because they are not signatories to the school USE accounts.


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SUMMARY OF OVERALL PERFORMANCE OF THE USE PPP

Source: Authors’ computations based on field survey data

66 66

34

66

35

6278

32 31

43

27

52

3019

2 3

237 13

5 3Rele

vanc

e

Effe

ctiv

ene

ss

Effi

cienc

y

Impa

ct

Sus

tain

ab

ility

Part

icip

ation

Acc

oun

tab

ility

TRUE True to an extent Not true


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EMERGING OPTIONS FOR POLICY CONSIDERATION

1

• Introduce a small new tax and earmark a portion of accrued revenue for USE implementation, with intent to gradually increase the capitation grant per USE student in tandem with changes in the cost of education inputs.

2

• Introduce consequences for disregarding the recommendations from the school monitoring/inspection report

3

• Create awareness and sensitize stakeholders about their roles and responsibilities: This will increase compliance and support towards the realization of the intended objectives of USE programme.


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I thank you for your kind attention

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