2006/ED/EFA/MRT/PI/23 Original : French Background paper prepared for the Education for All Global Monitoring Report 2006 Literacy for Life EFA progress in French and Portuguese Sub-Saharan African countries Aimé Damiba 2005 This paper was commissioned by the Education for All Global Monitoring Report as background information to assist in drafting the 2006 report. It has not been edited by the team. The views and opinions expressed in this paper are those of the author(s) and should not be attributed to the EFA Global Monitoring Report or to UNESCO. The papers can be cited with the following reference: “Paper commissioned for the EFA Global Monitoring Report 2006, Literacy for Life”. For further information, please contact [email protected]
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Background paper prepared for th
Education for All Global Monitoring Rep
Literacy for Life
EFA progress in French and Sub-Saharan African cou
Aimé Damiba 2005
This paper was commissioned by the Education for All Global Moninformation to assist in drafting the 2006 report. It has not been editeopinions expressed in this paper are those of the author(s) and shouldGlobal Monitoring Report or to UNESCO. The papers can be cited “Paper commissioned for the EFA Global Monitoring Report 2006, Linformation, please contact [email protected]
2006/ED/EFA/MRT/PI/23 Original : French
e
ort 2006
Portuguese ntries
itoring Report as background d by the team. The views and not be attributed to the EFA with the following reference: iteracy for Life”. For further
As an example, the main goals of Rwanda’s HIV/AIDS programme are the following:
- raise HIV/AIDS awareness,
- increase and improve HIV/AIDS educational materials,
- build the capacities of the HIV/AIDS unit at the Ministry of Education and in the
provinces,
- reactivate the anti-AIDS clubs and identify networks,
- take care of infected teachers and pupils,
- promote changes in young people’s social behaviour.
The main actions focus on training and curricula development.
Goal: citizenship education
The EFA/NAP of Côte d’Ivoire and Cameroon include a citizenship education goal. The
education for peace goal in Equatorial Guinea’s EFA/NAP and the education for a better life
goal in the EFA/NAP of Côte d’Ivoire and Togo are similar.
Cameroon’s EFA/NAP states a goal calling for the development of a culture of responsible
and active citizenship based on shared values with the aim of promoting the inclination to live
together in peace that is broken down into the following specific goals or challenges:
- education community support for a culture of citizenship in the school
environment and in the non-formal sector,
- continuous application of civic and moral values with the aim of eradicating
withdrawal into community identities in the school environment and the non-
formal sector,
- creation of language laboratories in non-formal basic education centres.
Actions that need to be taken include the following:
- raising the education community’s awareness of the culture of citizenship in the
school environment,
- developing and revising programmes,
- training teaching staff,
- locally developing and producing civics and morality school textbooks,
- developing local language learning programmes.
2. 4 Making EFA/NAP operational
Four complementary operations aim to fulfil the EFA/NAP credibility requirement: the
development of a logical framework, the financial evaluation of the plan, the selection of
performance indicators and the choice of implementation and monitoring-assessment
mechanisms.
Logical frameworks and implementation tables
After the EFA/NAP goals are set, a logical framework spells out the details. The EFA/NAP of
16 countries make use of this practice. The general goals are broken down into particular
ones, the strategies or actions necessary to achieve them are spelled out and details of the
activities are given, with the timetable, the responsible institutional authority, cost estimates
and an indication of funding sources.
A case in point is Cameroon’s EFA/NAP, in which the seven goals (the six Dakar goals plus
citizenship education) are broken down into 31 challenges that can be considered separate
targets. For all 31 of them, 183 actions are to be taken. The total estimated cost of the planned
activities is put at 1,250 billion francs CFA broken down into three periods:
- 306 for the 2003–2005 period;
- 464 for the 2006–2010 period;
- 480 for the 2010–2015 period.
In another example, Côte d’Ivoire, the logical framework is expressed in terms of a matrix
where, for each area, a total of 144 sub-goals are listed for the entire EFA/NAP after the
general and particular goals. A strategy, activity, expected result, responsible official, partners
and performance indicator corresponds to each sub-goal. The activities are broken down into
periods: 79 for the short term (2004 – 2006); 42 for the medium term (2006 – 2010); and 23
for the long term (2010 – 2015).
The wording of the various items is often tautological. For example, “goal: to recruit and train
2,000 teachers per year; activity: recruitment of 2,000 teachers per year, or 26,000; expected
result: recruited and trained teachers; performance indicator: number of teachers trained.”
Financial evaluation
Making full use of a logical framework leads to the cost estimate of the various activities
called for in the EFA/NAP. That is the case in the above example of Cameroon, but not for
Côte d’Ivoire, where the financial evaluation is not provided activity-by-activity but in a
summary table for an amount of slighter over 611 billion francs CFA
Only two of the 21 EFA/NAP examined had no complete financial evaluation.
Implementation, monitoring-assessment and performance indicator mechanisms
This topic covers two interrelated issues: the implementation process and the institutional
framework.
The process is regulated in that the systematically developed EFA/NAP include an
implementation timetable as well as monitoring and assessment indicators. Only 11 of the 16
countries using the logical framework have performance indicators.
The logical framework usually calls for integrating each EFA/NAP component into the
institutional framework. But a coordination problem arises at various levels. Some countries
settle the issue by using existing structures, while others have EFA/NAP that plan to set up
new ones. Only 10 countries have specific proposals to that effect.
One example of an implementation and monitoring-assessment mechanism is in the Central
African Republic’s EFA/NAP, which calls for:
• A meeting of domestic and international partners with the mandate of assessing periodic
reports on the plan’s implementation.
• A National Coordinating Committee made up of officials from the various components.
This is the plan’s permanent monitoring-assessment structure.
• A Technical Committee, made up of education specialists, in charge of running the
programme.
• A Regional Coordinating and Monitoring Committee chaired by local school inspectors
and made up of administrative and education officials and education system partners.
• A Town Committee, chaired by the mayor, responsible for local coordination and
monitoring.
Conclusion
At the end of this review of education plans for all of Africa’s French- and Portuguese-
speaking countries and Equatorial Guinea, several conclusions concerning the continuous
character of EFA planning and the nature of the education policy reforms under way can be
drawn.
EFA planning, a continuous process
The countries have made a major push to initiate processes of broad participation, in the
Forum or national EFA committees, in the development of credible EFA/NAP encompassing
all the EFA goals.
Seven of the 21 available EFA/NAP documents analysed can be considered final versions
because political officials have formally validated them. The lack of formal political
validation does not prevent currently implemented education policies from taking all or some
of the dimensions of EFA into account.
The EFA/NAP examined cover all EFA dimensions, the six goals making up the six
EFA/NAP components, or those that are included in less numerous components. Some plans
have additional goals involving HIV/AIDS, health and education, education for a better life,
education for peace and citizenship education.
The EFA/NAP examined are specific documents separate from other education policy papers
such as ten-year education and training plans and even broader economic and social plans like
Poverty Reduction Strategy Papers. But those documents, insofar as they often pre-date
EFA/NAP and served as their basis, in particular to highlight insufficiently addressed EFA
aspects. The EFA/NAP serve as a benchmark for taking all the EFA goals into account during
periodic reviews of education policies in their implementation processes.
There is an obvious desire to make EFA/NAP operationally credible. That is especially the
case for those that make use of logical frameworks to help set quantifiable goals, determine
activities in a timetable usually made up of three stages, estimate costs and select monitoring
performance indicators.
Many EFA/NAP, even the plans made available in 2004 and bearing the words “temporary
version”, have not yet been finalised. That observation points up the continuous character of
the EFA planning process, not really for finalising a document, but to have the actually
implemented education take EFA’s various dimensions into account. The result is the
importance attached to setting up operational EFA/NAP implementation mechanisms.
Adopting reform measures
The mystique of reform that in the 1960s and 1970s triggered a groundswell of support in
Africa for structural transformations in education, sweeping changes in content and the
adoption of new methods, including the use of advanced technology, is barely visible in
contemporary education plans. Education officials proceed by making occasional
improvements to the dominant systems and supporting innovations that complement them.
The main reform measures observed consist of taking multiple initiatives whose combined
effect aims to increase access to education, stimulate demand and cut costs. Four high-impact
kinds of measures will be mentioned below.
Change the way teachers and pupils are grouped together
In several cases, variants of dual-purpose classrooms, with double and sometimes triple flows,
and multigrade classrooms, round out the traditional way that teachers and pupils are grouped
together (one teacher and one group of pupils per education level). That has helped boost the
GER by 16 percentage points in Senegal and 38 in Mauritania. It should be pointed out that
those steps did not meet with unanimous approval from education beneficiaries because they
were not always accompanied by the necessary adjustments to programme contents,
preparation for new methods, teacher motivation, etc.
Reducing repetition rates
To avoid widespread repetition, some francophone countries (Burkina Faso, Mali, Niger, etc.)
have established a six-year primary cycle made up of three two-year cycles. Repetition is
prohibited within each cycle and very limited between cycles. Those steps aim at bringing the
repetition rate down to below 10%.
Recruiting more teachers at lower cost
The availability of a sufficient number of teachers at a cost that national budgets can bear is
the most serious problem for achieving primary universal education. One solution consists of
recruiting a new type of teacher who are not civil servants, whether they receive their salaries
from the State or communities. That step seems unavoidable. It has helped boost GER in
several countries, including Niger, Mali, Senegal, Chad and Cameroon.
Affirmative action to boost girls’ enrolment
In addition to awareness-raising campaigns to overcome the socio-cultural obstacles that keep
girls’ enrolment down, the plans propose many affirmative action measures, ranging from free
school supplies and textbooks to scholarships, reinforced educational supervision and the
distribution of food rations.
Taking alternative educational methods into account
For various reasons, several countries have pockets of enrolment resistance. Some regions are
developing their own education models because formal education, on account of its limited
geographical scope, marginalises them or because its content fails to meet their needs,
especially religious needs in devoutly Islamic countries. Promoting alternative education
models to fully meet the populations’ needs is a necessary reform. The integration of Koranic
schools, medersas and French-Arab schools into the dominant system, which requires
religious teaching in public schools to be effective, illustrates the complexity and scope of the
steps that need to be taken. Senegal has been taking that approach since 2000 and Niger for
even longer.
Bibliography
• Rapport d’activité en faveur de l’Education pour tous en Afrique sub-saharienne.
2003-2004. UNESCO/BREDA July 2004.
• Synthèse des progrès accomplis en Africque dans la planification et la réalisation de
EPT. ED/02/MINEDAF/REF/3 UNESCO/BREDA December 2002.
• Dakar Framework for Action, Education For All: Meeting Our Collective
Commitments. UNESCO 2000
Annex 1
Table 1: Progress of EFA planning (July 2004)
Country Existence of NETP
Existence of
EFA/NAP
Connection to
PRSP
Connection to
OMD
Elu FTI1
Technical validation
Social validation
Political validation
Group I Benin 2003 x x x x x x x Burkina Faso 2002 x x x x x Côte d’Ivoire 2003 x x x x x x x x Guinea 2001 x x x x x x x x Mali 2004 x x x x x Mauritania x x x x Niger 2004 x x x x Senegal 2002 x x x x Togo 2004 n.a. x x x Group II Cameroon 2002 x x x x Congo 2002 x x n.a. n.a. x x Democratic Congo 2004
x x x x x x x
Gabon 2002 n.a. x x x Central African Rep. 2004
x x x x x x
Chad 2002 x x x x Group III Burundi 2003 x x x x x x Comoros x x x x Djibouti x x x x Madagascar n.a. x n.a. n.a. Rwanda 2003 x x x x x Group IV Angola 2002 x x x Cap Vert 2002 x x n.a. n.a. x x x Guinea Bissau 2002 x x x x Mozambique 2002 x x n.a. n.a. x Sao Tomé 2002 x x n.a. n.a. x x x Equatorial Guinea 2002
x x n.a. n.a. x x
Source: Rapport d’activités en faveur de l’éducation pour tous en Afrique sub-saharienne 2003-2004 UNESCO/BREDA page 22
1 OMD ?
Annex 2
Table 2: Structures of EFA/NAP analyzed
Country Country context and ed. system
Diagnosis Goals, stratégies
Logical framework
Financial evaluation
Performance indicators
Monitoring mechanism
GROUP I Benin x x x x n.a. n.a. n.a. Burkina Faso n.a. x x x x x n.a. Côte d’Ivoire x x x n.a. x x Guinea n.a. x x x x x n.a. Mali x x x x x x n.a. Mauritania Niger x x x x x x Senegal x x x n.a. n.a. n.a. x Togo x x x x x x x GROUP II Cameroon x x x x x x x Congo x x x x x n.a. x Democratic Congo
x x x x x x x
Gabon x x x x x x n.a. Central African Republic
x x x x x x x
Chad x x x x n.a. n.a. GROUP III Burundi x x x x n.a. Comoros Djibouti Madagascar Rwanda x x GROUP IV Angola x n.a. x n.a. x n.a. n.a. Cap Vert x x x x x n.a. n.a. Guinea Bissau x x x x x n.a. x Mozambique Sao Tomé x x x x x n.a. x Equatorial Guinea
x x x x x x x
Annexe 3
List of EFA/NAP analyzed
Group I BENIN Republic of Benin. Cotonou, December 2003. Plan d’actions national du Bénin pour la mise œuvre du programme Education pour tous. 139 pages. BURKINA FASO Burkina Faso. Ouagadougou, October 2002. Projet de Plan d’action national: Education pour tous d’ici 2015 Document complémentaire au PDDEB (Première version). 53 pages. COTE D’IVOIRE Republic of Côte d’Ivoire, Abidjan,03 June 2003 Plan d’action national de l’éducation pour tous (EFA/NAP2003- 2015) 173 pages. GUINEE Republic of Guinea. Conakry. Description du Programme Education Pour Tous (2001- 2012). 72 pages. NIGER Republic of Niger. Niamey, June 2004. Plan d’action national EPT 2000-2015. 127 pages. MALI Republic of Mali. Bamako, Juin 2004. Plan d’action national EPT (draft). 151 pages. SENEGAL Republic of Senegal. Dakar, Août 2002. Programme de développement de l’éducation et de la formation / Education Pour Tous (PDEF/EPT). Document de travail. 150 pages. TOGO Togolese Republic. Lomé, December 2004. Plan d’action national de l’Education pour tous 2004- 2015. 210 pages. Group II CAMEROON Republic of Cameroon. Yaoundé, October 2002. Plan d’action national de l’éducation pour tous. 119 pages. CONGO Republic of Congo. Brazzaville, November 2002. Plan national de l’éducation pour tous. 82 pages. DEMOCRATIC CONGO Democratic Republic of Congo. Kinshasa/Gombé, April 2004. Plan national de l’éducation pour tous (avant projet). 117 pages. GABON Gabonese Republic. Libreville, November 2002. Plan d’action national Education pour tous. Suivi de Dakar. 70 pages. REPUBLIQUE CENTRAFRICAINE Central African Republic. Bangui, April 2004. Plan d’action national de l’éducation pour tous 2004 – 2015. 96 pages. TCHAD Republic of Chad. N’Djaména, September 2002. Plan d’action national de l’Education pour tous (PAN/EPT) à l’an 2015. Part I: diagnostic et strategy. 48 pages.
Group III BURUNDI Republic of Burundi. Bujumbura, August 2003. Plan d’action national d’éducation pour tous (version provisoire). 60 pages. RWANDA Rwandan Republic. Kigali, April 2003. Education pour tous: Résumé du Plan et Programme stratégique du secteur de l’éducation (PSSE). Cadre de l’éducation de base. 42 pages. Group IV ANGOLA Republic of Angola. Luanda, June 2003. Plan d’action nationale d’éducation pour tous 2001 – 2015. 63 pages. CAPE VERDE Republic of Cape Verde. Praia 25 October 2002. Plan national d’éducation pour tous. 72 pages. GUINEA BISSAU Republic of Guinea Bissau. Bissau, July 2002. Plan d’action national Education pour tous. 90 pages. SAO TOME AND PRINCIPE Republic of Sao Tomé and Principe. Sao Tomé, November 2002. Education pour tous, Plan national d’action 2002 – 2015. 119 pages. EQUATORIAL GUINEA Republic of Equatorial Guinea. Malabo, September 2002. Plan d’action nationale de développement de l’éducation pour tous (EPT). 133 pages.