SABER School Feeding Benin CR Final 2015 - World Bank · 2016-07-08 · THE WORLD BANK Benin SCHOOL FEEDING SABER Country Report 2015 Policy Goals Status 1. Policy Frameworks School

THE WORLD BANK

Benin

SCHOOL FEEDINGSABER Country Report

2015

Policy Goals Status1. Policy Frameworks

School feeding is not included in the Poverty Reduction and Growth Strategy 2011 2015. Anational school feeding policy is prepared but is not yet validated and published.

2. Financial CapacitySchool feeding is funded through the national budget. A budget line exists but the allocatedfunds do not cover all the needs.

3. Institutional Capacity and CoordinationThere is no multisectoral technical committee to coordinate the implementation of theschool feeding program. There is a specific unit (Direction de l’Alimentation Scolaire) withinsufficient resources and trained staff.

4. Design and ImplementationWhile this is no monitoring and evaluation (M&E) plan, there is a unit dedicated to M&Ewhich needs to be strengthened. There are no national standards for the procurement offood and the arrangement of the program’s logistics.

5. Community Roles-Reaching Beyond SchoolsSchool feeding management committees exist and involve parents, teachers and students.Parents feel only partial ownership of the community’s school feeding program due to theirlimited contributions. Capacity strengthening is needed.

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BENIN SCHOOL FEEDING POLICIES SABER COUNTRY REPORT | 2015

SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 2

Introduction

This report presents an assessment of school feedingpolicies and institutions that affect young children inBenin. The analysis is based on a World Bank tooldeveloped as part of the Systems Approach for BetterEducation Results (SABER) initiative that aims tosystematically assess education systems againstevidence based global standards and good practice toassist countries reform their education systems forproper learning for all.

School feeding policies are a critical component of aneffective education system, given that children's healthand nutrition impact their school attendance, ability tolearn, and overall development. A school feedingprogram is a specific school based health service, whichcan be part of a country’s broader school health program,and often a large amount of resources are invested in aschool feeding program. SABER School Feeding collects,analyzes, and disseminates comprehensive informationon school feeding policies around the world. The overallobjective of the initiative is to help countries designeffective policies to improve their education systems,facilitate comparative policy analysis, identify key areasto focus investment, and assist in disseminating goodpractice.

In late 2013, theWorld Food Programme (WFP) launcheda Revised WFP School Feeding Policy that incorporatesSABER School Feeding. The revised policy requires everyWFP country office with a school feeding component toundertake a policy dialogue with the Education Sector inthe country as part of capacity building activities. WFPdecided to use SABER School Feeding as one of theirpolicy tools to guide the policy dialogue and to assess ina more systematic way the transition of school feedingprograms to national ownership and/or thestrengthening of national school feeding programs. WFPwill integrate this tool into their project preparation from2015 onwards.

1 UNDP, 2014.

Country Overview

The Republic of Benin is in Sub Saharan Africa and coversan area of 114, 763 km ². It is bordered to the north bythe Niger River (120 km), to the north west by BurkinaFaso (270 km), to the east by the Federal Republic ofNigeria (750 km), to the west by the Republic of Togo(620 km), and to the south by the Atlantic Ocean (125km).

Benin's population is estimated at about 10 million, ofwhich women comprise 51.2 percent of the population.The natural growth rate is 3.5 percent. The per capitaGDP is estimated to be around 1,428 USD with aneconomic growth rate of 5.6 percent in 2013 and aninflation rate of 6 percent.

Benin is a low income country, ranked 165 out of 187countries according to the Report on the 2014 HumanDevelopment of the United Nations DevelopmentProgramme.1

The agricultural sector is the main source of wealthcreation at the national level and is an important sourceof foreign exchange.

The results of the Global Vulnerability Analysis and FoodSecurity (AGVSA) assessment conducted in 2013 showthat 11 percent of the population faces food insecurity.2The same study has clearly established a link betweenthe level of food insecurity, food consumption andhousehold poverty and the education level of thehousehold head. About 76 percent of food insecurehouseholds have a head of household with no educationand the children of these homes are less likely to attendschool than children from other households.

Education and Health in Benin

EducationOver the past five years, considerable progress has beenmade in the areas of access to education and genderequity (Net Enrolment Rate of 97.3 percent in 2012against 77.7 percent in 2006 and Parity Index girls/boys,0.95 in 2012 against 0.86 in 2006). However, there arestill some weaknesses in the school system as well asremarkable regional disparities. Challenges include:

2 World Food Programme (WFP), 2014a.



At the start of the primary school cycle, morethan 20 percent of students drop out;Over the past five years, the repetition rate hasbeen higher than 11 percent in primary;A slow increase in the primary completion rate,which rose from 65 percent in 2006 to 77percent in 2013, which does not guarantee theachievement of the target of 100 percent set bythe Millennium Development Goals (MDGs) by2015;Relatively low academic performance bylearners.

In the search for causes of the low efficiency of theschool system, it was shown that children who are mostvulnerable to food insecurity with critical issues ofhousehold nutrition often fail to attend classes regularlyand perform well academically. School feeding, thus, hasbeen identified as one of the essential measures tocorrect some of these weaknesses.

HealthBenin’s population faces many health challenges. Lifeexpectancy at birth is 59 years. In 2012, approximately55 percent of deaths were caused by communicablediseases and maternal, prenatal and nutritionconditions, which is a decrease from 2000. Deathscaused by non communicable diseases in 2012 were 36percent of the total deaths, which is an increase from2000. In 2012, approximately 6 percent of the populationwas undernourished.3

Access to improved sanitation facilities has improvedsince 2000, but there is a large disparity between ruraland urban access. Only 5 percent of the rural populationhad access while 25 percent of urban residents hadaccess to improved sanitation facilities in 2013. A largerpercentage of the population had access to an improvedwater source. In rural regions, 69 percent of ruralresidents had access while 85 percent of urban residentshad access to an improved water source in 2013.4

Malaria remains a prevalent disease in Benin. Themortality rate for children under five in 2013 was 85

3 World Bank, 2014.4 Ibid.5 World Health Organization, 2012.6 World Bank, 2014.7 Ahmed, 2004; Gelli, Meir, and Espejo, 2007.8 Jacoby, Cueto, and Pollitt, 1996; Powell et al., 1998; Kristjansson et al., 2007.

deaths per 1,000 live births, and malaria was the mostcommonly cited cause of death in children under the ageof five.5 Moreover, slightly more than one percent of thepopulation between the ages of 15 and 49 has HIV. Thenumber of children 14 years old and younger who haveHIV has increased from 5,300 in 2000 to 8,400 in 2013.6

The Case for School Feeding

School feeding programs, defined here as the provisionof food to schoolchildren, can increase schoolenrolment7 and attendance—especially for girls.8 Whencombined with quality education, school feedingprograms can increase cognition 9 and educationalsuccess. 10 With appropriately designed rations, schoolfeeding programs can improve the nutrition status ofpreschool and primary school aged children byaddressing micronutrient deficiencies. Combined withlocal agricultural production, these programs can alsoprovide small scale farmers with a stable market. Schoolfeeding programs can provide short term benefits aftercrises, helping communities recover and build resilience,in addition to long term benefits by developing humancapital.11 School feeding programs can be classified intotwo main groups: in school feeding (when children arefed in school) and take home rations (when families aregiven food if their children attend school regularly). Amajor advantage of school feeding programs is that theyoffer the greatest benefit to the poorest children. Severalstudies12 have indicated that missing breakfast impairseducational performance.

Present data suggests that almost every country isseeking to provide food to its schoolchildren. Therefore,especially for low income countries where most foodinsecure regions are concentrated, the key issue is notwhether a country will implement school feedingprograms but rather how and with what objectives.

The social shocks of recent global crises led to anenhanced demand for school feeding programs in lowincome countries as they served as a safety net for foodinsecure households through an income transfer. In

9 Whaley et al., 2003; Kristjansson et al., 2007; Jukes et al., 2008.10 Tan, Lane, and Lassibille, 1999; Ahmed, 2004; Adelman et al., 2008.11 WFP, 201312 Simeon and Grantham McGregor, 1989; Pollitt, Cueto, and Jacoby, 1998;Simeon, 1998.



response to this amplified request, the United NationsWorld Food Programme (WFP) and the World Bankjointly undertook an analysis titled Rethinking SchoolFeeding. 13 This initiative sought to better understandhow to develop and implement effective school feedingprograms as a productive safety net that is part of theresponse to the social shocks, as well as a fiscallysustainable investment in human capital. These effortsare part of a long term global goal to achieve EducationFor All and provide social protection to the poor.

School Feeding Program in Benin

School feeding has been identified as one of the essentialmeasures to address low enrolment and retention.

This commitment is reflected in most documentsproduced in the context of achieving the MillenniumDevelopment Goals (MDGs). In Benin, these documentsinclude the Growth Strategy for Poverty Reduction(GPRS), the Ten Year Plan Development of the EducationSector (PDDSE) 14 , the Strategic Recovery Plan SectorAgriculture (PSRSA), the Strategic Development Plan andNutrition (PSDAN) 15 , and the commitment wasreaffirmed in the United Nations Framework Plan forDevelopment Assistance of Benin (UNDAF 2014 2018)16.

In executing the recommendations of the NationalForum on School Feeding held in Cotonou from April 1315, 2010, a policy document called the National SchoolFeeding Policy Supply was developed and validated. Itneeds to be adopted by the Council of Ministers andpublished.17

Among the 7,73318 public primary schools that existed inBenin in 2013, only 2,228 were equipped with canteens,a national coverage rate of 26.63 percent. This situationis explained by the fact that school feeding has fewerresources as needs increase yearly.

School Canteen Experiences in Benin

Benin has experimented with several types of schoolcanteens. But now, three types of canteens areunderway with methods of intervention differing fromone partner to another. The three types are (i) canteenssupported by WFP (ii) those assisted by the government

13 Bundy et al., 2009.14 Republic of Benin. Ministères en Charge de l’Education, 2006. Pg. 4015 Republic of Benin, 2009a.

and (iii) those implemented with funding from the FastTrack Initiative (FTI).

Other types of feeding have ceased to function formultiple reasons. However, these schools were takenover by one of the three types of canteens that are stillfunctional.

School canteen experiences with WFPWFP has supported the government in theimplementation of school feeding projects since 1975.The supply of food staples makes it possible to offer a hotmeal prepared on site in schools. Food is purchased atthe local, regional or international market with thecontribution of partners. The daily food ration per childis corn (75g), rice (75g), beans/split peas (30g), oil (10g)and iodized salt (3g).

The current project, BEN 200045 “Promotion of schoolfeeding” currently assists more than 95,000 beneficiariesin 484 schools in 30 of the 77 municipalities in thecountry.

In order to sustain the achievements of the project andto improve the nutritional intake of meals offered tostudents in the school canteen, a school garden projectwas initiated and implemented jointly with thegovernment through the Ministry of Early Childhood andPrimary Education (MEMP), the Ministry of Agriculture,Livestock and Fisheries (MAEP) and the Food andAgriculture Organization (FAO).

The National Directorate of WFP Projects (DN PAM) wasestablished and placed under the Ministry in Charge ofDevelopment for the contractual obligations of thegovernment under the binding agreement with WFP. Itprovides storage, maintenance, transportation anddistribution of food and other items within thebeneficiary structures. It has 15 stores with a capacityranging from 300 to 500 tonnes in all departments of thecountry and 7 to 10 trucks that transport food. Aquarterly distribution of food is made on a regular basis.

There is a significant monitoring system that collects andprocesses information about schools. A technicalsteering committee composed of representatives of theDirectorate of School Feeding (DAS), the DN WFP,

16Republic of Benin, 2014a. pg. 1317 Republic of Benin, 2014b.18 MEMP, 2013.



Management Unit FTI Programme and WFP wasestablished to monitor the project.

School canteens experiences with the governmentSince 2000, and in order to ensure the provision of schoolfeeding to children, the Government of Beninestablished a school canteen project drawing on WFP'sapproach. An annual budget allocation of 1.5 billion CFAis regularly available to the Ministry of Early Childhoodand Primary Education for the operation of schoolcanteens. The number of schools canteen rose from 144in 2000 to 1,144 in 2014 without significant increase inthe budget.

The food basket includes corn, rice, beans, oil and salt,but the government canteen also offers pasta, cassavaflour and canned fish.

To make the school feeding activities in Benin visible, theDirectorate of School Feeding (DAS) was established in2013 under the Ministry of Early Childhood and PrimaryEducation. This department coordinates theinterventions related to school feeding.

Despite the efforts of the government to allocatesufficient resources, the limited budget does not coverthe entire school year as there are only enough resourcesfor four months of the school year. The lack of sufficientresources is worsened by the increasing number ofschools from 1,114 in 2014 to 1,307 schools in 2015.There are also logistical difficulties—lack oftransportation for products, no stock at the local level,and the long process of acquiring food—that do notpromote the achievement of the project’s objectives.

School canteens experiences with the Fast TrackInitiative (FTI FCB)The establishment of canteens funded by FTI startedduring the 2010 2011 school year. FTI operates 554canteens (501 canteens targeted by WFP and 53canteens previously assisted by DANIDA). The approachto implementation is to recruit service providers tosupply meals to schoolchildren. A daily meal rate of 125francs CFA per student is offered. The funds allocated toeach school are domiciled at the city office RecettePerception. This account is funded from the budgetaccount of MEMP through the General Directorate of the

19 Republic of Benin. Ministère du Developpement, De L’Analyse Economiqueet de la Prospective.

Treasury and Public Accounting (DGTCP). The providerhired for each school is responsible for providing onemeal a day at noon to every child in that school. Theprovider is paid fortnightly at the city office upon thepresentation of documents proving that the service wasrendered to the school.19

Monitoring is carried out by local NGOs. The mainproblem here is the delay in payment of service, which islikely to decrease the supply and the quality of food.

Moreover, it should be noted that the lack of communityparticipation in the financing of these canteens does notbode well for the sustainability of school feeding oncethe program ends.

FiveKey Policy Goals to Promote SchoolFeeding

There are five core policy goals that form the basis of aneffective school feeding program. Figure 1 illustratesthese policy goals and outlines respective policy leversand outcomes that fall under each goal.

The first goal is a national policy framework. A solidpolicy foundation strengthens a school feedingprogram’s sustainability and quality of implementation.National planning for school feeding as part of thecountry’s poverty reduction strategy (or other equivalentdevelopment strategies) conveys the importance thegovernment places on school feeding as part of itsdevelopment agenda. For most countries that areimplementing their own national programs, schoolfeeding is included in national policy frameworks.20

The second policy goal for school feeding is financialcapacity. Stable funding is a prerequisite forsustainability. However, where need is greatest,programs tend to be the smallest and themost reliant onexternal support. Funding for these programs can comefrom a combination of sources, such as nongovernmental organizations (i.e., WFP) and thegovernment. When a program becomes nationalized, itneeds a stable and independent funding source, eitherthrough government core resources or developmentfunding. In the long term, a national budget line for

20 Bundy et al. 2009; WFP, 2012.



school feeding is necessary for an effective and stableprogram.

The third policy goal is institutional capacity andcoordination. School feeding programs are betterexecuted when an institution is mandated andaccountable for the implementation of such a program.Effective programs also include multisectoralinvolvement from sectors such as education, health,agriculture, and local government, as well as acomprehensive link between school feeding and otherschool health or social protection programs andestablished coordination mechanisms.

The fourth policy goal is sound design andimplementation. In order to maximize effectiveness,school feeding programs should clearly identify countryspecific problems, objectives, and expected outcomes.The country’s context and needs should determine theprogram’s beneficiaries, food basket (menus), foodmodalities and supply chain. Countries and partnersshould work towards creating a delicate balance amonginternational, national, and local procurement of foodsto support local economies without jeopardizing thequality and stability of the food supply.

The last policy goal is community roles reaching beyondschools. School feeding programs that are locally owned,incorporate contributions from local communities, andrespond to specific community needs are often thestrongest. These programs are most likely to make asuccessful transition from donor assistance to nationalownership. Community participation should beconsidered at every stage, but without overburdeningcommunity members.

The primary focus of the SABER School Feeding exerciseis gathering systematic and verifiable information aboutthe quality of a country’s policies through a SABERSchool Feeding Questionnaire. This data collectinginstrument helps to facilitate comparative policyanalysis, identify key areas to focus investment, anddisseminate good practice and knowledge sharing. Thisholistic and integrated assessment of how the overallpolicy in a country affects young children’s developmentis categorized into one of the following stages,representing the varying levels of policy developmentthat exist among different dimensions of school feeding:

1. Latent: No or very little policy development2. Emerging: Initial/some initiatives towards policy

development.3. Established: Some policy development4. Advanced: Development of a comprehensive

policy framework

Each policy goal and lever of school feeding ismethodically benchmarked through two SABER analysistools. The first is a scoring rubric that quantifies theresponses to selected questions from the SABER SchoolFeeding questionnaire by assigning point values to theanswers. The second tool is the SABER School FeedingFramework rubric that analyzes the responses, especiallythe written answers, based on the framework’s fivepolicy goals and levers. For more information, please visitthe World Bank’s website on SABER School Health andSchool Feeding and click on the “What Matters”Framework Paper under Methodology.



Figure 1: Policy goals and policy levers for school feeding



Policy Goal 1: PolicyFrameworks in Benin

Policy Lever:

Overarching policies for school feeding in alignmentwith national level policy

A policy foundation helps strengthen the sustainabilityand accountability of a school feeding program as well asthe quality of its implementation. Nearly all countrieswith national ownership of programs have wellarticulated national policies on the modalities andobjectives of school feeding.21

The Poverty Reduction and Growth Strategy (GPRS) from2011 to 2015 does not specifically address the issue ofschool feeding.22 It has a section on nutrition and foodbecause improving the population’s nutrition conditionsis one component of the government’s developmentgoal to build human capital.23 The GPRS also states thatthe government intends to implement the Strategic Planfor Food and Nutrition (PSDAN), which is operated by theResults Based National Food and Nutrition Program(PANAR). 24 PSDAN is a policy document that includesnutrition specific and nutrition sensitive approaches andfocuses on food availability and security in order toreduce malnutrition.25 The National Food and NutritionCouncil is the agency responsible for PSDAN. The GrowthStrategy for Poverty Reduction (SCRP) also mentions theneed to address nutrition and food issues.26

School feeding is discussed in some sectoral policydocuments, which includes the Ten Year DevelopmentPlan for the Education Sector (PDDSE) 2006 2015.27 TheNational School Feeding Policy was developed andvalidated during a stakeholder workshop in December2013.28 It has yet to be adopted and officially published.

21 WFP, 201222 Growth Strategy for Poverty Reduction (GPRS) 2011 201523 Republic of Benin, 2011; Scaling Up Nutrition (SUN), 2015.24Republic of Benin, 2009.

1. Policy Frameworks is EMERGING

Indicators Score Justification

1A. National levelpoverty reductionstrategy as well aseducation sectoralpolicies and strategiesidentify school feeding asan education and/orsocial protectionintervention, with clearlydefined objectives andsectoral responsibilities.

School feeding isrecognized as anintervention inthe domain ofeducation orsocial protection,but is not yetincluded in theSCRP, the GPRS,or in other similarpolicies andsectoralstrategies.The SCRP 20112015 mentionsfood andnutrition ingeneral withoutspecifying schoolfeeding.

Ten YearDevelopmentPlan EducationSector (PDDSE)2006 2015 takesinto accountschool feedingwithoutmentioning thegoal.

School feedingwas discussedduring thepreparation ofthe GPRS.School feedingwas alsodiscussed duringthe preparationof this plan.PDDSE alsoincludes thesubject.

25 FAO Benin, 2012.26 Republic of Benin, 2010.27 Republic of Benin, 2006.28 World Food Programme (WFP), 2014b.



1B. An evidence basedtechnical policy related toschool feeding outlinesthe objectives, rationale,scope, design, andfunding and sustainabilityof the program andcomprehensivelyaddresses all four otherpolicy goals.

The need fortechnical policyfor school feedingis recognized, butthis policy has notyet beenpublished.A National SchoolFeeding Policywas developedand validated inDecember 2013.It has yet to beofficially adoptedand published.The policy is setto be reviewedand revised.



Policy Goal 2: FinancialCapacity in Benin

Policy Lever:

Governance of the national school feeding programthrough stable funding and budgeting

Stable funding is necessary for the long termsustainability of a school feeding program, especially onethat transitions from being donor funded to governmentfunded. School feeding programs supported by externalpartners generally rely on food aid, government in kinddonations, and/or government cash contributions. Inorder for the program to be sustainable and nationallyowned, the school feeding program should have a budgetline and be part of the government’s budgeting andplanning process.

School feeding is funded by the national budget of Beninand international partners such as WFP and FTI FondsCommun Budgétaire pooled donor funds. However,there are no budget lines for school feeding at theregional and school levels because the system iscentralized. DAS manages the funds at the national leveland provides food for the government’s school canteens.FTI Fonds Commun Budgétaire’s school canteens arefunded from a global budget where money is distributedper school and each school’s funds are domiciled at thecity office. The funding from the central level is smallwith bureaucratic disbursement procedures. In 2013, thegovernment allocated 1,051,103,904 CFA for themanagement and operation of school canteens, which isthe lowest amount since 2005.29

29 Republic of Benin, 2013. Table 9.

2. Financial Capacity is EMERGING

Indicators Score Justification2A. Nationalbudget line(s) andfunding is allocatedto school feeding;funds are disbursedto theimplementationlevels in a timelyand effectivemanner.

School feeding isintegrated intothe nationalplanning processand stablenational fundingis guaranteed bya dedicatedbudget line, butall needs are notmet; there is nobudget line at theregional andschool level;existing funds forschool feedingare distributed atthe national leveland implementedunevenly.



Policy Goal 3: InstitutionalCapacity and Coordinationin Benin

Policy Levers:

School feeding inter sectoral coordination andstrong partnershipsManagement and accountability structures, stronginstitutional frameworks, and monitoring andevaluation

Implementing a school feeding policy requires significantinstitutional capacity because the program is a complexschool health intervention. The policy should clearlydefine the roles and responsibilities of stakeholders andactors at all levels. Methodically increasing governmentcapacity to manage a school feeding program isimportant to the program’s long term sustainability. Anational institution that is mandated and accountable forthe implementation of the school feeding program isconsidered to be a best practice. This institution shouldhave a specific unit that has adequate resources andknowledgeable staff to manage the school feedingprogram. Moreover, policies that detail accountabilityand management mechanisms can help ensure programquality and efficiency, especially if the school feedingprogram is decentralized.

Benin has no multisectoral steering committee, only aDirectorate of School Feeding at the national level withinsufficient resources, knowledge and staff for itsmission. The Directorate of School Feeding providednational coordination for the Fast Track school canteenprogram, which was intended to include schoolcommittees consisting of students, parents, andteachers. 30

3. Institutional Capacity and Coordination is LATENT

Indicators Score Justification3A. Multisectoralsteering committeecoordinatesimplementation of anational schoolfeeding policy

Coordinationinitiatives are notsystematic.

A National Policy onSchool Feeding hasbeen developedand validated but

30 Ibid.

not yet adopted andpublished. There isno multisectoralcommittee

3B. National schoolfeeding managementunit andaccountabilitystructures are inplace, coordinatingwith school levelstructures.

A structure devotedto school feeding isin place at thenational level, butwith limitedresources, andwithout a clearmandate andsufficientpersonnel;coordinationmechanismsbetween thenational, regional /local (if applicable)and schools are inplace but are notyet fullyoperational.

Formerly aGovernmentalCanteen Unit, theNational CanteensManagement Unitbecame theDirectorate ofSchool Feeding withrepresentation atthe departmentallevel.

3C. School levelmanagement andaccountabilitystructures are inplace.

Managementmechanisms ofschool feeding inschools are notstandardized andthe nationalframework isinsufficient

Managementcommittees inschools arefunctional in onlyFTI FCB schoolcanteens.



Policy Goal 4: Design andImplementation in Benin

Policy Lever:

Quality assurance of programming and targeting,modalities, and procurement design, ensuringdesign that is both needs based and cost effective

A well designed school feeding policy that is based onevidence is critical to the implementation of a qualityschool feeding program. The policy can include details ontargeting the correct beneficiaries, selecting the propermodalities of food delivery, and choosing a quality foodbasket. Over time, the school feeding policy may beredesigned or modified according to reassessments ofthe school feeding program.

There is no M&E plan, but a unit dedicated to M&E is inplace and needs to be strengthened. There are nonational standards for the procurement of food andlogistical arrangements.

4. Design and Implementation is LATENTIndicators Score Justification

4A. A functionalmonitoring andevaluation system is inplace as part of thestructure of the leadinstitution and usedfor implementationand feedback.

The importance ofM&E is recognized,but there is still nogovernmentmonitoring andevaluation of theimplementation ofschool feeding.

The importance ofmonitoring is seenbut a clearmechanism is notyet established.However, a budgetline is planned forthe development oftools for monitoringand evaluation.

4B. Program designidentifies appropriatetarget groups andtargeting criteriacorresponding to thenational school feedingpolicy and thesituation analysis.

Criteria andtargetingmethodology havebeen developed inline with thenational schoolfeeding policy;situation analysiswhich assessesneeds has not yetbeen completed.

4C. Food modalitiesand the food basketcorrespond to theobjectives, local habitsand tastes, availabilityof local food, foodsafety, and nutritioncontent requirements.

The need toestablish nationalstandards for schoolfeeding modalitiesand content of thefood basket isrecognized, but notyet materialized.

4D. Procurement andlogistics arrangementsare based on procuringas locally as possible,taking into account thecosts, the capacities ofimplementing parties,the productioncapacity in thecountry, the quality ofthe food, and thestability of thepipeline.

The need toestablish nationalstandards for theprocedures forprocurement andlogistics isrecognized, but notyet materialized.

Stability in thedelivery issometimes difficult.There is a NationalDirectorate of WFPProjects which hasshops and trucks inall departments butit must bestrengthened.There are currentlyno logisticalarrangements thatcan promote localpurchases.



Policy Goal 5: CommunityRoles–Reaching BeyondSchools in Benin

Policy Lever:

Community participation and accountability

The role of the community should be clearly defined in aschool feeding policy because community participationand ownership improves the school feeding program’schances of long term sustainability. If the governmentplaces the responsibility of sustaining the school feedingprogram on the community, the school feeding policyshould detail the guidelines, minimum standards, andsupport for the community to implement the program.The school feeding policy can also include mechanismsfor the community to hold the government accountable.

At the school level, there may be a school managementcommittee composed of parents, teachers, and studentsthat acts as a liaison between the school and communityandmanages the school feeding program. Care should betaken not to overburden the community, because in somecases the community may introduce fees to support thelocal school feeding program, which can negativelyimpact enrolment rates. Community assisted schoolfeeding programs are usually most successful in foodsecure areas.

Canteenmanagement committees composed of parents,students and teachers exist in each school. Capacitieswere strengthened for the management of schoolcanteens. However, the small contribution of the parentsinhibits a sense of ownership of the school feedingprogram.

WFP supports community ownership of school canteensand encourages community involvement in schoolfeeding programs. Parent associations commonlyoversee school canteens by maintaining the kitchen andfood storage areas. 31 Although there are canteenmanagement committees, parental involvement can beincreased.

31 World Food Programme, (WFP) 2014c.

5. Community Roles Reaching Beyond Schools isEMERGING

Indicators Score Justification5A. Communityparticipates in schoolfeeding programdesign,implementation,management andevaluation andcontributes resources.

There is amanagementcommittee forschool feeding, butthe participation ofparents andcommunitymembers should befurtherstrengthened; thepossibility of themmonitoring andinfluencing theschool feedingprogram is notsufficientlyrecognized.

Existence ofmanagementcommittee in allschools withcanteens.

There is lowparticipation ofparents andcommunities in themanagement ofschool canteens.

A mechanism formonitoring andsupervision by thecommunity existsbut is nonfunctional.

To view the scores for all indicators and policy goals inone table, please refer to Appendix 1.



Conclusion

An analysis of the five policy goals shows that, for thepolicy framework, the Poverty Reduction and GrowthStrategy (GPRS III) 2011 2015 does not specificallyinclude in its strategic axes questions of food andnutrition in schools (although nutrition is generallyaddressed). Although some sectoral policy documentsseem to refer to school feeding, the problem remainsunsolved. The National School Feeding Policy wasdeveloped and validated, but it needs to be reviewedbefore its adoption and publication. In terms of funding,an effort is made by the Government of Benin, whichprovides an annual budget to finance school canteens.But allocations remain low and disbursement procedurescomplex. There is no suitable mechanism forcoordination and implementation of the national schoolfeeding program. An inter sectoral steering committeeshould be put in place to take into account all theessential sectors for the implementation of a schoolfeeding program. Similarly, special attention should begiven to small local producers and the implementation ofmechanisms to increase local production purchases.Action must be taken to promote the participation andcontribution of communities in implementing schoolfeeding programs.

In terms of implementing a school feeding policy, Beninis still in a Latent stage. The proper implementation ofthe developed action plan will ensure an improvement ofthe current situation.

Policy Options:Accelerate the adoption process and thenpublish the school feeding policy. To this end, theMinistry of Early Childhood and PrimaryEducation (MEMP) has a key role to play inmonitoring.Establish as soon as possible an inter sectoralsteering committee and make it functional.Integrate School Feeding in the Ten YearDevelopment Plan Education Sector (PDDSE) asa clear and specific goal.Advocate for the integration of school feedinginto sectoral policy documents and in the nextpoverty reduction and growth strategy.School based management committees shouldbe involved in the management of schoolfeeding. This is necessary for sustainability.



Appendix 1

Table 1. Levels of Development of SABER School Health Indicators and Policy Goals inBenin



School feedingcoordination - strongpartnerships andinter-sectorcoordination

Multisectoral steeringcommittee coordinatesimplementation of anational school feedingpolicy

Any multisectoral steeringcommittee coordinationefforts are currently nonsystematic

Sectoral steeringcommittee coordinatesimplementation of anational school feedingpolicy

Multisectoral steeringcommittee from at leasttw o sectors (e.g.education, socialprotection, agriculture,health, local government,w ater) coordinatesimplementation of anational school feedingpolicy

Multisectoral steeringcommittee from at leastthree sectors (e.g.education, social protection,agriculture, health, localgovernment, w ater)coordinates implementationof a national school feedingpolicy; this government-ledcommittee providescomprehensive coordination(across internationalagencies, NGOs, the privatesector and local businessrepresentatives as w ell) andis part of a w ider committeeon school health and nutrition

National school feedingmanagement unit andaccountabilitystructures are in place,coordinating w ithschool level structures

A specif ic school feedingunit does not yet exist atthe national level;coordination betw een thenational, regional/local (ifapplicable), and schoolsis lacking

A school feeding unitexists at the nationallevel, but it has limitedresources and limitedstaff numbers and lacksa clear mandate; w hilecoordinationmechanisms betw eenthe national,regional/local (ifapplicable), and schoollevel are in place, theyare not fully functioning

A fully staffed schoolfeeding unit w ith a clearmandate exists at thenational level, based onan assessment of staff ingand resources needs;coordination mechanismsbetw een the national,regional/local (ifapplicable), and schoollevel are in place andfunctioning in mostinstances

A fully staffed schoolfeeding unit exists at thenational level, based on anassessment of staff ing andresources needs, w ith aclear mandate, and preandin-service training;coordination mechanismsbetw een the national,regional/local (if applicable),and school level are in placeand fully functioning

School levelmanagement andaccountabilitystructures are in place

Mechanisms formanaging school feedingat the school level arenon-uniform and nationalguidance on this islacking

National guidance onrequired mechanismsfor managing schoolfeeding are available atthe school level, butthese are not yetimplemented fully

Most schools have amechanism to manageschool feeding, based onnational guidance

All schools have amechanism to manageschool feeding, based onnational guidance, w ith preandin-service training forrelevant staff

A functional monitoringand evaluation (M&E)system is in place aspart of the structure ofthe lead institution andused forimplementation andfeedback

The importance of M&E isrecognised, butgovernment systems arenot yet in place for M&Eof school feedingimplementation

A government M&E planexists for school feedingw ith intermittent datacollection and reportingoccurring especially atthe national level

The M&E plan for schoolfeeding is integrated intonational monitoring orinformation managementsystems and datacollection and reportingoccurs recurrently atnational and regionallevels

The M&E plan for schoolfeeding is integrated intonational monitoring orinformation managementsystems and data collectionand reporting occursrecurrently at national,regional and school levels;analysed information isshared and used to refineand update programs;baseline is carried out andprogram evaluations occurperiodically

Program designidentif ies appropriatetarget groups andtargeting criteriacorresponding to thenational school feedingpolicy and the situationanalysis

The need for targeting isrecognised, but asituation analysis has notyet been undertaken thatassesses school feedingneeds and neithertargeting criteria nor atargeting methodologyhas been established asyet

Targeting criteria and atargeting methodology isbeing developedcorresponding to thenational school feedingpolicy; a situationanalysis assessingneeds is incomplete asyet

Targeting criteria and atargeting methodologyexists and is implementedcorresponding to thenational school feedingpolicy and a situationanalysis assessing needs

Targeting criteria and atargeting methodologyexists and is implementedcorresponding to thenational school feedingpolicy and situation analysis(including costings forvarious targeting anddesigns); M&E informationis used to refine and updatetargeting and coverage on aperiodic basis

Food modalities andthe food basketcorrespond to theobjectives, local habitsand tastes, availabilityof local food, foodsafety (according toWHO guidelines), andnutrition contentrequirements

There is recognition of theneed for nationalstandards for foodmodalities and the foodbasket, but these do notexist yet

National standards onfood modalities and thefood basket have beendeveloped andcorrespond to tw o ormore of the follow ing:objectives, local habitsand tastes, availability oflocal food, food safety(according to WHOguidelines), and nutritioncontent requirements

National standards onfood modalities and thefood basket have beendeveloped and correspondto objectives, local habitsand tastes, availability oflocal food, food safety(according to WHOguidelines), and nutritioncontent requirements

National standards on foodmodalities and the foodbasket have beendeveloped and correspondto objectives, local habitsand tastes, availability oflocal food, food safety(according to WHOguidelines), and nutritioncontent requirements; M&Einformation is used to refineand update food modalitiesand food basket on aperiodic basis

Procurement andlogistics arrangementsare based on procuringas locally as possible,taking into account thecosts, the capacities ofimplementing parties,the production capacityin the country, thequality of the food, andthe stability of thepipeline

There is recognition of theneed for nationalstandards forprocurement and logisticsarrangements, but thesedo not exist yet

National standards onprocurement andlogistics arrangementshave been developedand are based on threeor more of the follow ing:procuring as locally aspossible, taking intoaccount the costs, thecapacities ofimplementing parties,the production capacityin the country, thequality of the food, andthe stability of thepipeline

National standards onprocurement and logisticsarrangements have beendeveloped and are basedon procuring as locally aspossible, taking intoaccount the costs, thecapacities of implementingparties, the productioncapacity in the country,the quality of the food, andthe stability of the pipeline

National standards onprocurement and logisticsarrangements have beendeveloped and are based onprocuring as locally aspossible, taking into accountthe costs, the capacities ofimplementing parties, theproduction capacity in thecountry, the quality of thefood, and the stability of thepipeline; M&E information isused to refine and updateprocurement and logisticsarrangements

Policy Goal 3: Institutional Capacity and Coordination

LATENT

Policy Goal 4: Design and Implementation

Management andaccountability

structures, includingstaff ing - strong

institutionalframew orks forimplementation

LATENT

Quality assurance ofprogramming and

targeting,modalities, and

procurement design,ensuring design thatis both needs-basedand cost-effective



Communityparticipation andaccountability -strong communityparticipation andow nership(teachers, parents,children)

Community participatesin school feedingprogram design,implementation,management andevaluation andcontributes resources(in-kind, cash or aslabor)

Systems andaccountabilitymechanisms are not yetin place for consultationw ith parents andcommunity members onthe design, monitoringand feedback of theschool feeding program

A school feedingmanagement committeeexists but parent andcommunity memberparticipation could bestrengthened andaw areness on theopportunity to monitorand feedback on theschool feeding program islacking

The school feedingmanagement committeecomprisesrepresentatives ofteachers, parents, andcommunity members andcommunities haveaccountabilitymechanisms to holdschool feeding programsaccountable at the schoollevel

The school feedingmanagement committeecomprises representativesof teachers, parents, andcommunity members andhas clearly definedresponsibilities and periodictraining. Accountabilitymechanisms are in place byw hich communities can holdschool feeding programsaccountable at the school,regional, and national levels

EMERGING

Policy Goal 5: Community roles--reaching beyond schools



Acknowledgements

This report is part of a joint World Bank Group andWorldFood Program (WFP) effort to help countries strengthentheir education system policies and institutionsspecifically in relation to school health and schoolfeeding. The SABER School Feeding tools were appliedby WFP with support from the Partnership for ChildDevelopment (PCD). This report was prepared from aSABER School Feeding questionnaire completed duringthe national SABER workshop held March 19 20 March,2014, at Chant d’Oiseau in Benin.

The organization of the SABER workshop demonstratesthe willingness of the Government of Benin and itsstrategic partners such as the WFP, the World Bank, andPCD to implement a real school feeding policy in Benin.

The results of this workshop, presented in this report, arethanks to the contribution of all actors and partnersinvolved in the implementation of school feedingprojects in Benin and particularly WFP and its partners inPCD and the World Bank, civil society organizations, andsocial partners of the education system.

The SABER workshop would not have happened at thislevel of performance without the technical and logisticalsupport from the WFP Country Office in Benin, WFPRegional Office in Dakar, the World Bank and PCD.

Our thanks go particularly to Ms. Constance Kobolar,Regional Councillor for Education, WFP Regional Office,Dakar; Bachir Sarr, PCD Canada; FaraRakotondrandriamaro, Assistant Representative;Armelle Korogone, ProgrammeOfficer; Antoine Hauzeur,Programme Officer, WFP, Benin; Adagbe Albert, Directorof Office, MEMP; Julienne Berkègui Zime Yerima,Director of the School Feeding; Nestor Ezin, TechnicalAdvisor; Elisabeth Assogba; Safiatou Chabi Kobi; MoïbiAdamon, MEMP; Godonou Gnonlonfin, NationalDirector, WFP projects/MDAEP; Denial Azandegbe andTheodore Nathael Agossou, Ministry of Agriculture andFisheries (MAEP); Nabil Abdoulaye, Ministry of Economyand Finance (MEF).

Our sincere thanks go to the Representative and CountryDirector, WFP, Benin Togo, Mr. Taal Housainou, Minister

of Early Childhood and Primary Education, and HisExcellency Eric Kouagou N'Da.

Our thanks also go to all workshop participants for theirattendance and their sense of patriotism and finally to allthose who directly or indirectly facilitated this workshop.

We also thank the following reviewers of this report:Hyacinthe Gbaye, Andy Chi Tembon, and Michelle Louie(World Bank); and Bachir Sarr (PCD).

Acronyms

AFD : Agence Française de Développement

AGVSA : Analyse Globale de la Vulnérabilité et de la

Sécurité Alimentaire

AGVSAN : Analyse de la Vulnérabilité, de la Sécurité

Alimentaire et de la Nutrition

ANCB : Association Nationale des Communes du Bénin

BM : Banque Mondiale

CAPE : Cellule d’Analyse des Politiques Economiques

CCS : Chef de Circonscription Scolaire

DAS : Direction de l’Alimentation Scolaire

DDEMP : Direction Départementale des Enseignements

Maternel et Primaire

DGCTP : Direction Générale du Trésor et de la

Comptabilité Publique

DN PAM : Direction Nationale des Projets PAM

DSRP : Document de Stratégie de Réduction de la

Pauvreté

EMICOV : Enquête Modulaire Intégrée des Conditions de

Vie

FAO : Organisation des Nations Unies pour

l’Alimentation et l’Agriculture

FCB : Fonds Commun Budgétaire

FTI : Fast Track Initiative



INSAE : Institut National de la Statistique et de l’Analyse

Economique

MAEP : Ministère de l’Agriculture, de l’Elevage et de la

Pêche

MDAEP : Ministère du Développement, de l’Analyse

Economique et de la Prospective

MEMP : Ministère des Enseignements Maternel et

Primaire

MISPC : Ministère de l’Intérieur, de la Sécurité Publique

et des Cultes

MJLDH : Ministère de la Justice, de la Législation et des

Droits de l’Homme

OCS : Observatoire du Changement Social

OMD : Objectifs du Millénaire pour le Développement

ONG : Organisation Non Gouvernementale

OP : Organisation Paysanne

PAM : Programme Alimentaire Mondial

PCD : Partenariat pour le Développement de l’Enfance

PDDSE : Plan Décennal de Développement du Secteur de

l’Education

PIB : Produit Intérieur Brut

PME : Partenariat Mondial pour l’Education

PNAS : Politique Nationale d’Alimentation Scolaire

PNUD : Programme des Nations Unies pour le

Développement

PSDAN : Plan Stratégique de Développement de

l’Alimentation et de la Nutrition

PSRSA : Plan Stratégique de Relance du Secteur de

l’Agriculture

PTF : Partenaire Technique et Financier

SCRP : Stratégie de Croissance pour la Réduction de la

Pauvreté

TNS : Taux Net de Scolarisation

UNDAF : Plan Cadre des Nations Unies pour l’Assistance

au Développement

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The Systems Approach for Better Education Results (SABER) initiativeproduces comparative data and knowledge on education policies andinstitutions, with the aim of helping countries systematically strengthentheir education systems. SABER evaluates the quality of educationpolicies against evidence based global standards, using new diagnostictools and detailed policy data. The SABER country reports give all partieswith a stake in educational results—from administrators, teachers, andparents to policymakers and business people—an accessible, objectivesnapshot showing how well the policies of their country's educationsystem are oriented toward ensuring that all children and youth learn.

This report focuses specifically on policies in the area of School Feeding.

This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusionsexpressed in this work do not necessarily reflect the views of TheWorld Bank, its Board of Executive Directors, or the governmentsthey represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors,denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bankconcerning the legal status of any territory or the endorsement or acceptance of such boundaries.

www.worldbank.org/education/saber

SABER School Feeding Benin CR Final 2015 - World Bank · 2016-07-08 · THE WORLD BANK Benin SCHOOL FEEDING SABER Country Report 2015 Policy Goals Status 1. Policy Frameworks School

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