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PACIFIC REGIONAL OVERVIEW OF PROGRESS TOWARDS EFA SINCE DAKAR Prepared by Elaine Lameta April 2005 Contents 1 INTRODUCTION .................................................................................................3 2 REGIONAL CONTEXT...................................................................................... 6 2.1 Demography...................................................................................................... 6 2.2 Poverty and Education in the Pacific ............................................................. 10 3 STATUS OF EFA PLANS .................................................................................11 3.1 The nature and situation of the Pacific EFA Plans .........................................11 3.2 The level of coverage of EFA Goals in Pacific EFA Plans ............................12 3.3 Prioritization of EFA Goals by Pacific Countries.. ........................................ 15 4 ACHIEVEMENTS AND CHALLENGES .......................................................17 4.1 Methodology ................................................................................................. 17 4.2 General Progress ............................................................................................ 18 4.3 Progress by 4 Pacific Case Studies ................................................................ 20 5 POLICIES AND STRATEGIES .......................................................................28 5.1 Policies and strategies .....................................................................................28 5.2 Forum Basic Education Action Plan and PRIDE ...........................................29 6 REMAINING CHALLENGES..........................................................................32 7 CONCLUSION................................................................................................... 36 8. APPENDIX 1 ......................................................................................................39 2 1. INTRODUCTION This Pacific Regional Overview of progress towards EFA since DAKAR 2000 is designed to complete and enrich country level analyses to be carried out throughout the 2006 Global Monitoring Report. There have been two recent regional syntheses related to EFA; the Survey Report Update on Planning and Implementing Education for All1 and the synthesis of the 2004 Pacific EFA Plans 2. These two syntheses established defined priorities, administrative processes, cross cutting themes, and issues facing EFA planning and implementation. In the preparation of this report both syntheses were found to include errors that stem from incorrectly reported data. The report presents updated analysis of the EFA situation in the Pacific region. It focuses on the progress towards each of the six EFA goals, and a critical analysis of factors, policies and strategies responsible for progress or lack of it. The specific terms of reference are: 1. Identify evidence within the Pacific region that can be cited to demonstrate that there has been progress or lack of progress since 2000 as regards each of the EFA goals. 2. Analyse the regional patterns and progress towards the six EFA goals. Are there sub-regional patterns or specificities? 3. Provide critical analysis of what factors explain these trends. 4. Identify, analyse and evaluate policies and strategies mainly responsible of progress observed. How comparatively successful have these been? To what extent are they critical to sustain progress towards achievement of the EFA goals by 2015? 1 UNESCO Division of Educational Policies and Strategies Education Sector 18/10/2004 2 UNESCO Office for the Pacific Apia 2005 3 5. If possible, briefly analyse the status of EFA plans in the region. Have they been finalized in all the countries in the region as requested by the Dakar Framework for Action deadline of end 2002? Are they stand-alone document or are they part of the overall education strategies? To what extent do they reflect each of the EFA goals? 6. What are the remaining obstacles in achieving EFA in the region? What are the key challenges still associated with achievement of the EFA goals in this region? On the basis of the Terms of Reference the study can be seen to have two levels of interest: 1. A macro-level interest in progress towards the achievement of EFA goals and the contribution of various strategies ( ToR 1,2,3,4,); and an interest in exposing obstacles and challenges for further progress (ToR 6) 2. A particular interest in the role, scope and effectiveness of the national EFA plans (ToR 5). It appears from the comments on Draft 1 of this report that there is an assumption that these two levels are not unrelated. The assumption appears to be that EFA plans are an integral part of national development strategies and priorities which would then result in the direction of resources and activities in such a manner that would result in progress towards the EFA goals. The EFA plans would then be seen as a substantial tool for organising and integrating the national effort to provide the environment to achieve the EFA goals. This study has found that such close links and causality can not be easily demonstrated in the Pacific. In spite of the fact that increased participation, inclusiveness, and investment in education is observable within the South Pacific countries it is difficult to provide reliable statistical evidence due to poor record keeping and fragmented reporting. It is 4 more difficult to show that such developments are necessarily linked to the development and implementation of EFA plans that were developed as part of the UNESCO initiative. EFA plans were frequently developed as yet another plan in a group of already existing plans linked to various development initiatives. This does not mean they were not seen as important. However it does mean that many focus on identifying processes and activities that would contribute to the overall national developments that were the sum of all initiatives. As a result the EFA plans are not necessarily seen as an important integrating tool but rather as a useful road sign pointing to policies that needed to be developed, or processes that needed to be put in place to develop or sustain an enabling environment. Such a perspective has had an impact on the way progress has been identified; statistics collected, collated and reported; and on the recognition of achievement of goals. Notwithstanding these constraints this report attempts to describe progress towards the achievement of EFA goals within the South Pacific region. This report is organized in six sections. Section 2 provides background information on the Regional Context. Section 3 focuses on the Status of the Pacific EFA Plans. This provides the context for Section 4 reporting on Achievements and Challenges. Section 5 analyses the contributing effects of Policies and Strategies. Section 6 describes Remaining Challenges followed by the Conclusion 5 2. REGIONAL CONTEXT3 2.1 Demography The Pacific countries form a unique geographical area. The region has 7,500 islands with fewer than 550 inhabited and its 30 million square kilometers cover more than one third of the earth’s surface. Many countries are small and are made up of widely dispersed islands. The islands of the Pacific are divided into three sub-regions. The Western region is called Melanesia (Fiji, Papua New Guinea, Solomon Islands and Vanuatu), the Southeastern region is Polynesia (Cook Islands, Niue, Samoa, Tokelau, Tonga and Tuvalu) and the Central and Northern region is known as Micronesia (Federated States of Micronesia, Kiribati, Marshall Islands, Nauru and Palau). The division is generally based on ethnic, cultural and linguistic differences. All of the countries are covered in this report except Tokelau who has only recently (2004) participated in the Pacific regional meetings for EFA. Population information for Tokelau is shown because it has been included in the regional calculations. According to recent estimates4, the population of the Pacific Islands reached 8.6 million in 2004. This represents an increase of about 1.7 million people over ten years and reflects an annual growth rate of 2.2 per cent. If this annual growth rate is sustained, the population will double in 28 years, to 17.2 million. Relative population distribution has remained largely unchanged within the region, with the countries comprising Melanesia accounting for the majority (86.4%), followed by the countries of Polynesia (7.4%) and those of Micronesia (6.2%). 3 Sourced from the UNESCO Office for the Pacific, Apia ‘Synthesis of the Pacific Education for All Action Plans’ 2003, 2004. 4 Dr Gerald Haberkorn “Current Pacific population dynamics and recent trends” SPC Demography Population Programme July 2004 6 Population distribution within countries and the region creates difficulties. The Pacific nations’ geography makes administration, communication and people’s access to basic services complicated and expensive. The demographic statistics displayed in Table 1 are based on the countries’ latest census. They do not show the distribution of people in some of the Pacific countries where populations are dispersed throughout huge areas on small isolated islands and atolls. For example, the Federated States of Micronesia consists of more than 600 islands spread out over an area of around 2.5 million square kilometers. Pacific islands are vulnerable to natural catastrophes such as cyclones, hurricanes, tidal waves, and in some cases, volcanic eruptions. The atoll countries are particularly susceptible to rising sea levels. These factors affect development in the Pacific region. The characteristics of Pacific countries affect development in the region. The flow of external development funding and investment is restricted due to the size and location of the countries. The Pacific region is at times bypassed by some of the major funding institutions. There are various explanations for this including the small size of populations in the region and a lack of understanding about development concerns in the Pacific. As well, compared to other developing countries around the world, social, economic and education indicators are rather high and only five of the Pacific countries having Less Developed Country (LDC) status. These are Kiribati, Samoa, Solomon Islands, Tuvalu, and Vanuatu. 2.1.1 Population Challenges5 Moderately high fertility rates and migration play a strong role in the population structures and distribution of Pacific countries. Rapid population growth is apparent in the countries’ population structures with low median age and broad population base. 5 This section has been sourced from Dr Gerald Haberkorn “Current Pacific population dynamics and recent trends” SPC Demography Population Programme July 2004; and SPC “Pacific Regional MDG Report 2004 7 Fertility rates are of particular relevance to the population growth across Melanesia particularly Papua New Guinea, Solomon Islands and Vanuatu. Migration on the other hand plays a more prominent role in the other Melanesian islands, namely Fiji Islands and New Caledonia. Sustained emigration from Fiji Islands followed political developments of the past decade. New Caledonia faces continued immigration from France. Throughout Micronesia and Polynesia, migration is the single biggest factor impacting on national population growth. Migration to metropolitan countries has been a feature of Micronesian and Polynesian countries in the last four decades resulting in low population growth rate in some island countries (Federated States of Micronesian, Nauru, Tonga), and actual population decline in Cook Islands and Niue. Migration makes the biggest contribution to population distribution via rural-to-urban migration. Population growth throughout the region has been much higher in the urban than rural areas, except Federated States of Micronesia and Niue. This reflects sustained rural to urban migration over the last decade, which accounts for the rapid urbanisation taking place across the region. Seven out of the 15 Pacific Island countries have over 40% of their populations living in urban areas6. Fertility rates and migration in the Pacific have meant a high percentage of youth in the population. The rapid growth of youth population in the Pacific is a major challenge to the education systems of the Pacific countries. The UN Human Development Report 1999 notes that 20% of the region’s population is aged between 15 and 24 years. This is a total of 1.5 million, which is expected to rise by another 300,0007 by the year 2010. The birth rates throughout the Pacific region vary with Polynesian countries having the lowest rates. 6 SPC 2004 7 Pacific Regional Strategy Paper 2002-2007 cited in the Synthesis of Pacific Education for All Action Plans 2004 8 Table 1. Demographic data for the Pacific by sub region (excluding Australia and New Zealand) Latest Total Mid-year Land Population Mid-year Annual Populatio Region/ Census population Population area density Population n growth Country Year at last estimate (km²) Mid-year estimate rate census 2004(a) 2004(b) 2015(a) (%) (2004- (people/ 2015) (c) km²) MELANESIA Fiji 1996 775 077 836 000 18 272 46 891,100 0.7 P.N.G 2000 5 190 786 5 695 300 462 840 12 5 873 600 2.2 Solomon Is 1999 409 042 460 100 28 370 16 589 700 2.3 Vanuatu 1999 186 678 215,800 12 190 18 267 600 2.7 MICRONESIA F.S.M 2000 107 006 112 700 701 161 129 000 1.2 Kiribati 2000 84 494 93,100 811 115 119,700 2.3 Marshall Is 1999 50 840 54 400 181 306 66 100 1.6 Nauru 2002 10 066 10 100 21 481 11 300 1.0 Palau 2000 19 129 20 700 488 42 25 900 2 POLYNESIA Cook Is 2001 18 027 14,000 237 75 12 100 -1.3 Niue 2001 1 788 1600 259 6 1200 -3.8 Samoa 2001 176 710 182,700 2 935 62 201,900 0.9 Tokelau 2001 1 537 1 500 12 125 1 500 0 Tonga 1996 97 784 98,300 650 151 95 400 -0.3 Tuvalu 2002 9561 9 600 26 369 10 000 0.4 Source: SPC 2004 Notes: (a) Population projections for 2004 an d2015 and projected age-sex pyramids are based on the latest available census results. In some cases the latest census was collected too recently for fertility, mortality and migration estimates to be available. In such instances the total count from the latest census is shown but the previous census was used as the basis for projections. This may result in apparent discrepancies between census population totals and estimated population totals in some cases. All projections and estimates except for Fiji Islands are SPC estimates. The estimated smaller populations in 2015 than in 2004 for the Cook Islands, Niue, and Tonga are based on recent SPC projections, drawing extrapolations (medium growth assumption) of recent international migration trends from these island countries. (b) All population density estimates are based on 2004 population estimates. (c) Average annual growth rates are derived from the most recent SPC population estimates and projections – see note a). 9 2.2 Poverty and Education in the Pacific Poverty has historically not been a significant issue in the Pacific as people had access to subsistence resources and strong social networks. Poverty and income disparity however, are emerging concerns. People in the community considered to be disadvantaged or deprived are most commonly viewed as facing poverty of opportunity. This term has been adopted by Pacific Island countries as a multi-dimensional concept embracing a lack of education and health, lack of economic assets, employment opportunities, social exclusion and political marginalization. The Pacific is particularly vulnerable to external economic shocks and natural disasters. There is a direct link between poverty and vulnerability as the latter threatens the sustainability of livelihoods. Cash poverty has begun to emerge as a problem. For most countries two decades of fairly rapid population growth, urban drift and economic difficulties have produced growing inequalities between groups of people. The traditional support mechanisms are under strain and, in some instances, they are breaking down. For decades many Pacific nations have invested high proportions of their budgets in education as its crucial role in development is recognized. Donors have also given much assistance. Consequently, most Pacific countries are able to provide initial access to schooling. However, they continue to be concerned about the relevancy and quality of schooling provided. The education systems have been focused on the development of young people for the formal employment sector particularly the public sector. Current demographics mean that young people are particularly at risk of underemployment. In most countries in the Pacific the number of young people seeking jobs each year exceeds to number of jobs available. The formal waged sector is unlikely to ever absorb all the surplus labour. The challenge for the Pacific is to meet the aspirations of an already substantial and for most countries still growing youth population. Much surplus labour is involved in the non-formal and informal sectors. Governments are attempting to stimulate these sectors to improve livelihoods and support the populations. The Pacific Forum Education Ministers acknowledge the need to refocus 10 the systems by emphasizing skills develop to improve products, improve productivity and to improve sustainability in the non-formal and informal sectors. 3. STATUS OF EFA PLANS Terms of Reference 5: If possible, briefly analyse the status of EFA plans in the region. Have they been finalized in all the countries in the region as requested by the Dakar Framework for Action deadline of end 2002? Are they stand-alone document or are they part of the overall education strategies? To what extent do they reflect each of the EFA goals? 3.1 The nature and situation of the Pacific countries’ EFA Plans In the UNESCO Survey Update on EFA Planning and Implementation 2004 all 14 countries in the Pacific Region8 said their EFA plans were a sector or basic education plan adjusted (updated) in the light of EFA goals. Examination by the author of the actual plans for 139 of the Pacific countries showed that this was not the case. All countries have pre-existing national sector-wide education plans, and EFA plans were developed specifically to address the EFA goals. The EFA plans therefore were articulated as separate documents. Although they were standalone EFA Plans, they were said to complement or give support to the national education plans. The EFA plans cover 2000-2010. All plans, except the Cook Islands, have been approved by national authorities and are being implemented. Most plans were finalized by 2003. The Tuvalu plan has recently been reviewed as part of the national education sector review conducted in 2004. The separate articulation of EFA plans has impacted on the degree to which they are implemented and monitored because of the additional demands made on limited resources. Their separation from national plans has made them vulnerable to marginalisation because they often need financial and human resources that are supplementary to the local recurrent budget. The situation is changing with the benefit of 8 For the purposes of this report, excludes New Zealand, Australia, Tokelau. Tokelau is excluded because they have only recently (Aug 2004) participated in EFA regional workshops. 9 Excludes Nauru whose plan is undergoing review as a result of their country’s restructuring 11 experience and sector reviews. Tuvalu for example, has recently (June 2004) drafted its Education and Training Sector Master Plan in which the EFA goals are integrated. Samoa has accepted a recommendation10 that Samoa’s EFA plan should be inter-sectoral, and be integrated in the relevant agencies’ policies, strategic plans and action plans. The Cook Islands is completing a 15 year plan within which it will locate EFA actions. 3.2 The level of coverage of EFA Goals in EFA Plans.11 Four of the Pacific countries cover all of the EFA Goals in their plans. Nearly 80 per cent of countries do not cover gender equity (Goal 5). Adult literacy (Goal 4) is not addressed by 1 country – Nauru. Goals 2, 3, 4, and 6 are covered by all countries. Table 2 summarises the level of coverage of the different goals. All of the Pacific countries have had an expanded vision of EFA through the integration of the protection of basic human rights and basic health education into EFA action plans. Table 2 The level of the coverage of EFA Goals. No. of countries % in region All 6 EFA Goals covered 4 28 (Samoa, Vanuatu, Fiji, Solomon Islands) Goal 2 not addressed 1 7 (Nauru) Goal 5 not addressed 11 78 (Cook Islands, Kiribati, Papua New Guinea, Niue, Tonga, FSM, Nauru, Palau, Tuvalu, Marshall, Kiribati) Eleven countries do not address Goal 5 as they do not perceive gender inequality as a problem. It is true that girls and boys have equal opportunity for attendance at school and 10 From report of the UNESCO/IIEP ‘Reinforcing /incorporating skills development in the Samoa National EFA Plan. Authors Afamasaga, G.T., Moli, S.F., Kruse-Vaai, E. March 2005 11 This information was sourced directly from the Pacific EFA Plans. 12 to achieve academically. However, data from SPC monitoring of the Millennium Development Goals shows that the situation may not match the perception. Table 3 shows: • that in primary schools the number of girls enrolled is less than the number of boys for all countries except for Nauru; • that in the secondary schools the number of girls enrolled; o exceeds the number of boys in 6 countries ( FSM, Fiji, Kiribati, Marshal Islands, Samoa and Tokelau) o that the proportion of enrolments of girls is higher in secondary schools than in primary schools in three countries even though the total enrolments are still less than boys ( Cook Islands, Tonga and Vanuatu) o that in five countries (Nauru, Niue, Palau, Papua New Guinea, Solomon Islands) the proportion of girls enrolled in secondary school is not only less than the boys but is also less than the proportion of girls that were enrolled in primary. Tuvalu has the same pattern but the report shows statistics with a nine year separation. All of the Pacific countries have had an expanded vision of EFA through the integration of the protection of basic human rights and basic health education into EFA action plans. These figures show that at the most basic issue of enrolment there is an issue that is not being addressed in the EFA plans. It must also be noted that in a number of countries, while there may be more boys enrolled; there is also an emerging trend of underachievement by boys. This issue is also not addressed through the EFA plans. 13 Table 3 Millennium Development Goals Education Indicators percentage net Percentage of pupils Percentage Literacy Ratio of girls to enrolment Ratio of girls to boys year year starting grade 1 who year rate of 15-24 year- year boys in primary year in primary in secondary school reach grade 5 olds school education Cook Islands 2001 92.26 1996 98.2 1996 93 2003 0.89 2003 0.94 Federated States of Micronesia 2000 92.3 2000 66.9 1994 71 2000 0.93 2000 1.04 Fiji Islands 2000 94.7 2000 88.4 1996 93 2000 0.98 2000 1.07 Kiribati 2000 93.5 1990 98 1990 92 2000 0.93 2000 1.14 Marshall Islands 1999 84.14 1999 86.05 1989 74 2002-03 0.83 2002-03 1.04 Nauru 2002 60.33 2002 92 n/a n/a 2000 1.15 2000 0.84 Niue 2001 90.24 2001 90.48 2001 95 2001 0.85 2001 0.83 Palau 2000 76.19 n/a n/a 1995 91 2000 0.97 2000 0.88 Papua New Guinea 2000 77.4 2000 56.8 2000 61.7 2000 0.86 2000 0.67 Samoa 2001 87 2001 84 2001 99 2001 0.93 2001 1.04 Solomon Islands 1999 56 1991 85 1991 62 1999 0.86 1999 0.7 Tokelau n/a n/a n/a n/a 2003 86.5 2003 0.96 2003 1.12 Tonga 1996 89.4 1990-91 84 1996 99 2001 0.89 2001 0.99 Tuvalu 2002 100 1993 95.8 1991 95 2002 0.93 1991 0.86 Vanuatu 1999 78 2000 91.2 1989 34 1999 0.91 1999 0.93 Source: SPC PRISM ( Pacific Region Information System Management ) 2004 14 3.3 Prioritization of EFA Goals by Pacific Countries Table 4 below represents the prioritization of the EFA goals by Pacific countries based on their EFA plans. Table 4 Prioritization of EFA Goals by Pacific Countries12 EFA Goals Region/ 1 2 3 4 5 6 Country Adult ECE Access Life skills literacy Gender Quality MELANESIA Fiji 1 4 2 5 6 3 PNG 2 1 3 4 5 6 Solomon Is 2 3 4 6 5 1 Vanuatu* 1 2 3 3 5 4 MICRONESIA F.S.M 2 5 3 4 6 1 Kiribati 5 2 3 4 6 1 Marshall Is 2 4 3 5 6 1 Nauru 2 5 3 4 6 1 Palau 2 4 3 5 6 1 POLYNESIA Cook Is** 1 1 1 1 6 1 Niue 4 5 2 3 6 1 Samoa** 1 1 1 1 1 1 Tonga 1 4 2 5 6 3 Tuvalu 4 2 3 5 6 1 * Vanuatu has chosen to make both EFA goal three and four their third priority ** Samoa has chosen to make all six EFA goals their first priority A number of general observations can be made about the priorities for the Pacific countries. EFA Goal 1 focusing on early childhood and EFA Goal 6 on quality education have been highly prioritised by most Pacific Countries. Historically, early childhood education was the focus of mission activities, and communities and in many countries was not part of the formal education sector. With primary and secondary education 12Updated from Synthesis of the Pacific Education for All Action Plans 2004. 15 now relatively well established, the attention to early childhood recognises the importance of the sector and the need to standardise provision. The prioritising of EFA Goal 6 is consistent with ‘quality’ being one of the key concepts in national and regional educational plans. EFA Goal 4 focusing on adult literacy and EFA goal 5 on gender equity are not highly prioritized by almost all Pacific countries. As with most of the EFA actions, the focus of literacy intervention remains within the school sector. Based on the EFA plans, it would appear that inadequate attention is given to adult basic education in the entire Pacific. Gender disparity is not a major concern to most of the countries. Even though the enrolment of female and male students in the region is not balanced (Table 3). Moreover, studies have revealed that in the Pacific, the concern is with boys’ achievement which lags behind their female counterparts. Yet, the EFA plans do not explicitly address boys’ underachievement. EFA Goal 2 focusing on access and EFA Goal 3 on life-skills were rated on average, medium level priority by most countries. Broad-based provision of education in a few countries is a challenge because of the cost. The main reason given for lack of access to life skills programmes was the need for appropriate curricula. It is argued that the current curriculum does not fully prepare an individual to engage in a contemporary Pacific Island society and economy. Inappropriate curriculum has been identified as a key factor in the high drop out rates of students from secondary schools. While curriculum reform is adopted as the solution it is only one factor in what is a complex and multifaceted issue. Both Goal 2 and Goal 3 relate to some of the vulnerable populations in the Pacific and their need for inclusive education, and lifeskills education. The Pacific population is very youthful and nations are increasingly faced with the issues associated with out-of school youth. Labour market analyses show that the waged economy is unable to absorb the increasing numbers of out-of school youth throughout the Pacific. These conditions require a rethink of the priorities and a broadening of the strategies to include both the formal and non formal sectors. As a result countries are adopting a range of measures to increase the system responsive to 16 needs. The South Pacific Forum Education Ministers Suva Declaration set responsiveness to training needs for the non-formal sector as a high priority. Country programs include expansion of TVET provision with the consequential development of TVET policies, investment in new and expanded facilities and centres, increased numbers of TVET trainers, modularisation of programs, development of second chance pathways, new adult health education policies, programs and deliveries. Currently it is difficult to quantify the impact of such programs on participation and transition rates. The priorities indicate that there are weaknesses in the cause and effect analyses resulting in weakened links between proposed reforms, actions and the achievement of the EFA Goals. This also means there should be a continuous evolvement of EFA Plans to take into account actions achieved and their impact on the goals. This is further discussed in the Comments section p 26. 4. ACHIEVEMENTS AND CHALLENGES Terms of Reference 1. Identify evidence within the Pacific region that can be cited to demonstrate that there has been progress or lack of progress since 2000 as regards each of the EFA goals. Terms of Reference 2. Analyse the regional patterns and progress towards the six EFA goals. Are there sub-regional patterns or specificities? Terms of Reference 3. Provide critical analysis of what factors explain these trends. 4.1 Methodology As stated in the introduction to this report, the study has two levels of interest. One, progress towards the EFA Goals, and two the status and contribution of the EFA plans. Constraints Reporting progress towards the goals for the Pacific is problematic as the data is not accumulated on the basis of sector wide cross-cutting issues at either country or regional level. This is not to say the relevant data is not being collected but rather that it is not being accumulated and collated in a unified way that allows ready access and analysis towards each Goal. For example, the evidence of the contribution of different line 17 departments or agencies is held by those departments and is not held under a common point of access. This situation is the result the EFA plans being seen as separate from the national plans and as a result were not embedded within national developments, the plans not being understood as involving the efforts of all related agencies of government to achieve the goals, and the EFA coodinators not being seen as the coordinators of a strategic cross- cutting initiative The problem of presenting evidence on progress towards each of the EFA Goals is further confounded by not having monitoring systems in place that separate the administration inputs and functions from impact or goal measures. The inputs are important along the way, but of themselves, do not assure the achievement of the goal. The impact or goal measures remain to be clarified for all countries’ EFA Plans. The information available through the EFA reporting mechanisms is biased towards reporting on actions and achievement of indictors. Notwithstanding this, the report attempts to describe progress towards the achievement of particular EFA goals where relevant data is available. The report of progress towards achievement of EFA Plan indicators will be based on what has been generally achieved with reference to the administrative inputs of the EFA Plans, what is specific to the cases studies of respondent countries, and what regional initiatives are. 4.2 General progress based on the nature and situation of the EFA Plan Based on the nature and situation of the EFA plans the following evidence is presented for progress towards the EFA Goals. All Pacific countries have succeeded in formulating and reviewing the plans for EFA in response to the Dakar Framework. The plans were developed subsequent to national sector-wide education plans and are supplementary to the national plans. As a consequence, the EFA plans by themselves, do not express a 18 comprehensive coherent sector-wide plan but when read in combination with the national sector-wide plans, they address the elements specific to EFA Goals. All plans are long term with a target of 2010, and all are now being implemented. The EFA Plans and preparation demonstrate evidence of: - Political commitment through policy papers on EFA goals; establishment of broad-based EFA forums involving high level policy makers and representatives from civil society; financial commitment in terms of internal funding committed to education within the formal and to an extent non-formal sector. The evidence in the Plans is documented commitments to investment. Evidence from national budgets to show changes since Dakar has not been made available by country coordinators. - Broadbased-consultation and participation in EFA planning that has included providers of all educational services from government, NGOs, community councils, religious denominations, business community; consultations and meetings with major stakeholders for consensus building on policies and strategies; consultation with donor community and their participation in problem analysis, planning, delivery - Conformity with broader development frameworks. The EFA Plans conform with macro-economic and social development frameworks within countries and the region for example, National Development Policies and Strategies, and the Pacific Forum Basic Education Plan. - A degree of sector analyses conducted prior to the formulation of the plans, were recently conducted, or are currently in progress in all the Pacific countries. Additional investigation and research focus on specific EFA Goals for the purposes of policy development for example, Non- formal education, Children with special needs, Language education, Enrolments All Pacific countries have had an expanded vision of EFA by integrating human rights protection and basic health education into their plans. 19 All of the Pacific countries have included target indicators for monitoring and evaluation of EFA goals and have made projections in terms of required costs. ( see example in Appendix 1) All Pacific countries have established institutional arrangements for the co- ordination of EFA that include an EFA Co-ordinator and / or Secretariat within government institutions. A number of countries make use of pre-existing representative bodies for steering and monitoring EFA Goals. EFA Plans are dynamic in nature and evolve with changes to national and sector plans. 4.3 Progress as reported by 4 Pacific Case Studies Achievement of EFA Plan indicators Progress towards each of the EFA Goals is reported for each country based on the progress in achieving of the EFA Plan indicators, that is the completion or not of activities against the indicators in their EFA Action Plans. Progress is judged to have been made if the indicators have been met and action is complete, or if action has begun, or if the action is on-going. Table 5 shows the overview of progress for each of the goals across the 4 countries that have reported as part of this exercise. Progress is quantified as the number of indicators that have completed actions, started actions or where actions are on-going, and shown as a percentage of the total indicators in the Plan for each goal. The following information can be highlighted as the state of progress towards each of the EFA Goals. Progress has been made by all 4 countries towards EFA Goal 6 – Quality Action Plan indicators, and EFA Goal 3 – Lifeskills Action Plan indicators. EFA Goal 6 is a high priority with all four countries, and EFA Goal 3 is a medium level priority. Except for Palau, all countries have made progress on each of the EFA Goal Action Plan indicators that feature on their EFA Action Plans. Palau has not made progress on EFA 20 Goal 1 Action Plan indicators which is a level 2 priority for them, and EFA Goal 2 Action Plan indicators which is their level 4 priority. A key reason for Palau’s situation is lack of funding. Cook Islands and Tuvalu are both undergoing or have recently undergone a sector review which has affected the implementation of their EFA Action Plans. Table 5 Percentage of indicators in the EFA Plans showing Progress in actions towards each EFA Goal for 4 Pacific Countries Percent of indictors where progress has Percent of indictors Percent of indictors been noted (includes where there has been Deferred eg. due to ongoing) no progress sector review Goal 1 Early Childhood Cook Islands 35 41 24 Palau 0 100 0 Samoa 67 33 0 Tuvalu 62 38 0 Goal 2 Universal Education Cook Islands 43 57 0 Palau 0 100 0 Samoa 100 0 0 Tuvalu 52 5 43 Goal 3 Access to Life Skills Cook Islands 69 31 0 Palau 64 36 0 Samoa 73 36 0 Tuvalu 25 50 25 Goal 4 Adult Literacy Cook Islands 14 86 0 Palau 100 0 0 Samoa 50 50 0 Tuvalu* 0 0 0 Goal 5 Gender Equity Cook Islands* 0 0 0 Palau* 0 0 0 Samoa 60 40 0 Tuvalu* 0 0 0 Goal 6 Quality Cook Islands 60 40 0 Palau 89 11 0 Samoa 58 42 0 Tuvalu 79 16 5 * These EFA Goals are not a feature of these countries EFA Plans 21 Table 6 below presents the progress information by country for the four respondent countries. Table 6 Country profile of progress towards each EFA Goal Percent of indictors where progress has Percent of indictors Percent of indictors been noted (includes where there has Deferred eg. due to ongoing) been no progress sector review Cook Islands Goal 1 35 41 24 Goal 2 43 57 0 Goal 3 69 31 0 Goal 4 14 86 0 Goal 5* 0 0 0 Goal 6 60 40 0 Palau Goal 1 0 100 0 Goal 2 0 100 0 Goal 3 64 36 0 Goal 4 100 0 0 Goal 5* 0 0 0 Goal 6 89 11 0 Samoa Goal 1 67 33 0 Goal 2 100 0 0 Goal 3 73 36 0 Goal 4 50 50 0 Goal 5 60 40 0 Goal 6 58 42 0 Tuvalu Goal 1 62 38 0 Goal 2 52 5 43 Goal 3 25 50 25 Goal 4* 0 0 0 Goal 5* 0 0 0 Goal 6 79 16 5 * These EFA Goals do not feature as part of their EFA Plans Countries are diverse in terms of the EFA Goal that has made the most progress. The Cook Islands has made the most progress in EFA Goal 3, Palau in EFA Goal 4, Samoa in EFA Goal 2 and Tuvalu in EFA Goal 6. At this point, there is no discernible relationship between the ranking of EFA Goals in terms of progress so 22 far and the order of priorities, except in the case of Tuvalu where the most progress is made on their highest priority EFA Goal 6. Types of evidence The evidence of progress towards the EFA Goals can be grouped into 3 categories: (i) Inputs, (ii) Processes, and (iii) Impact or Outcomes. Input evidence The evidence of inputs includes all the investments in the EFA Goals through the commitment of finance, human resources, infrastructure, curriculum reform, equipment, student text materials, technical assistance, audio visual materials, language specific materials, and the resourcing of other partners such as NGOs. Table 7 shows the emphasis of inputs planned under the EFA Plans. The Table shows the frequency with which each kind of input was noted by the four reporting countries as having been utilised in the implementation of their EFA Plans. Table 7 Evidence of Progress Towards the EFA Plan Indicators – Types of investment inputs in the EFA Goals. Frequency % Human resource development* 34 52 Human resources appointed 11 17 Infrastructure 5 8 Curriculum reform 5 8 Equipment 3 5 Student texts 2 3 Technical assistance 2 3 Audio visual materials 1 2 Finance 1 2 Language specific materials 1 2 Resourcing other partners eg NGO 1 2 * includes professional development of central ministry staff, in-service training of teachers, scholarships, pre-service, teacher upgrading All four countries have invested heavily in human resource development and have appointed appropriate personnel to key areas of the EFA Framework. Investments have 23 also been made in infrastructure, curriculum reform, and materials development and resourcing NGO partners. Quantitative data showing the levels of investment over time and the consequential issues of pupil/teacher ratios, percentage of trained teachers, average teacher salaries, and ratios of pupils to educationally relevant resources and equipment are collected within the information systems of the regions countries. However, they have not been reported to the reviewer nor are they readily available through published data. Process evidence The evidence of processes followed in the implementation of the EFA Goals is outlined in Table 8. There are processes associated with policies and legislation, organizational changes, programme planning and services, information finding and recording, and consultation. The three most frequently used processes across the case studies are policies review and formulation, establishing consultation structures and processes, and reforming assessments. The policies and legislation processes are substantive statements of political commitment. The consultation structures and processes involve high level policymakers and representatives from civil society as well as other providers of educational services such as NGOs, community councils, religious denominations, and business community. Such processes illustrate a bottom up participatory approach for consensus building on policies and strategies. Table 8 Evidence of Progress Towards the EFA Indicators - Processes utilised to achieve the EFA Goals Frequency % Policies in place or being developed 11 20 Consultation structures and processes* 9 16 Assessment reforms 6 11 Programme review 4 7 Research studies 4 7 Legislation development and reforms 3 5 Home school partnerships 3 5 Reform of secondary education structure 3 5 Skills-based approach to training 3 5 Organisational structural review and restructure, sector planning 2 4 Tutoring services 2 4 24 Monitoring attendance 1 2 Alternative programmes for adults 1 2 Database development 1 2 Establishment of Qualifications Authority 1 2 Aids Awareness 1 2 * Includes advisory committees, advocacy groups Samoa has revised the legislation related to education drafting new legislation to replace the 1957 legislation. The new legislation includes ECE into the formal education sector. Countries are revising and expanding policies related to TVET. Impact evidence Evidence of impact of the inputs and processes on the achievement of each EFA Goal has not been identified by any of the four countries in the case studies. Reasons for progress or lack of progress Table 9 and Table 10 show the range of reasons given for progress or lack of it by the four reporting countries. Reasons for progress are to do with financial availability, collaboration across sectors, donors, and local communities, having people on board and systems in place. The two most frequently given reasons for progress towards the EFA Goals are the availability of external funding and inter-sectoral collaboration. Table 9 Reasons for progress of EFA plan indicators Frequency % External funding available 15 47 Inter-sectoral collaboration 8 25 Donor co-operation 2 6 Strong links with local communities and NGO 2 6 Government / NGO / Donor collaboration 1 3 Government priority and funding 1 3 Developers on board in central ministry 1 3 Systems in place in central ministry 1 3 Organisational restructuring 1 3 Notably, the most frequently given reason for lack of progress is a limited internal budget and the need for external funding. The limited quality and quantity of human resources is 25 the second most frequently given reason for lack of progress. Other reasons given include changes that are taking place within ministries such as having a sector review, changing the approach and focus. Table 10 Reasons for lack of progress EFA plan indicators ( Four reporting countries) Frequency % External funding needed, limited internal budget 20 44 Quality and quantity of human resources 13 29 Sector plan being reviewed 5 11 Focus on other aspects of the area 2 4 Low status of teaching, difficult to recruit 1 2 Language of text is English 1 2 Incomplete prior steps e.g. locating special needs 1 2 Change of approach 1 2 Cannot legislate 1 2 COMMENT On the basis of the Pacific case studies’ evidence of progress, a number of observations can be made. The first is that the proposed reforms and actions in the EFA Plans are steps along the way addressing some of the contributing factors to the issues. On their own, these steps contribute partially to the achievement of the EFA Goals. For example, curriculum reform may result in the identification of relevant content, knowledge and skills. However, if the assessment regime, recognition of learning and progression policies remain unchanged, and pathways within the senior secondary and post-secondary continue to focus narrowly on the academic track, the education system will continue to push out more and more students that are inadequately prepared to cope with life in both the traditional or modern economy. In this case, the goal of ‘equitable access to appropriate learning and life skills programmes’ has barely been scratched because the systemic structures that act as barriers remain untouched. The EFA Plans therefore need to be viewed as non-static and must through close monitoring be regularly reviewed with a focus on the EFA Goals. 26 The second point to be made is that the logical connections between some of the EFA Goals, problem, proposed solution and actions are weak or implicit. The analysis of cause and effect that contribute to the EFA Plans needs to be robust resulting in a comprehensive and holistic approach to the issues. The EFA Plans will therefore evolve through the implementation of an integrated programme of actions. There are instances in the current EFA Plans where a high rate of progress on the actions and indicators may not necessarily indicate a positive gain towards the EFA Goal because the initial cause and effect analysis was inadequate. In other words, there isn’t a straightforward correspondence between a high rate of achievement of indicators and the achievement of the EFA Goal. The third point is that all Pacific countries need to put in place within an overarching national monitoring system, adequate information systems that allow specific monitoring of EFA progress and that separate the administration inputs and processes from impact or goal measures. Current reporting of progress is limited to what inputs have been made, processes that have been followed or structures that have been established. As stated earlier in the report much information is held at the level of specific line departments and at a country level. The bigger questions are how and to what extent these contribute to the achievement of the EFA Goal. This can only be answered by setting up suitable information systems collection and reporting for administrative outputs, and also for impact on each EFA Goal and that integrates with an annual update of the EFA plan. Having the accumulated data available through one accessible point such as the SPC Millennium Development Goal monitoring web site would be valuable. The fourth point is that the formal sector alone will not achieve the EFA Goals. The case studies’ progress reports are essentially located within central ministries. While EFA planning has involved broadbased-consultation and participation, the emphasis is on the formal sector as indicated in the cross cutting themes in the EFA plans which are Teacher quality and quantity, Facilities, Curriculum, National Co-ordination policies, Access to schools, and Management of Schools. Evidence of the achievement of EFA Goals can be found also within other sectors such as the non formal education sector, other ministries, 27 non-government organisations and civil society, particularly as it relates to some of the key target groups such as out of school youth, and women. Table 8 showed that the second most frequent reason for progress after external funding is inter-sectoral collaboration. Holistic EFA planning should capitalise on cross-sectoral linkage, in working towards the EFA Goals as well as establishing a national cross-sectoral monitoring system. An important element in ensuring the credibility and sustainability of the countries’ respective plans is having viable information and monitoring system. Data analysis based on reliable information ensures planning is sound. A national cross sectoral monitoring system ensures the EFA Plans are updated and necessary adjustments are made to policies and strategies. The fifth point is that the absence of EFA specific monitoring mechanisms has made it very difficult to ascertain the evidence of progress. It raises the issue of sustainability and continuity of EFA Plans particularly as it relates to those that are confined to one sector such as the formal education sector, and those plans that are articulated separately from the sectors’ operational plans. The separation of the EFA Plans from the sector plans requires human resource inputs among others that small island nations are unable to sustain. It may be more efficient to integrate the EFA strategies within the national long- term sector plans and medium-term plans with a specific EFA monitoring track. The annual reports by different parts of the sector will then account for the achievement of the EFA Goals whose strategies are located within their division. In this way, monitoring is systematic and reporting more focused. A number of Pacific countries indicate a change in their approach to EFA Planning and implementation following recent or current sector reviews. Tuvalu’s EFA Plan is an example of EFA Goals being integrated into the sector plan. Cooks Islands is completing its 15 year plan within which it will make adjustments to its EFA Plan. 5. POLICIES AND STRATEGIES Terms of Reference 4. Identify, analyse and evaluate policies and strategies mainly responsible of progress observed. How comparatively successful have these been? To what extent are they critical to sustain progress towards achievement of the EFA goals by 2015? 28 5.1 Policies and strategies From the 4 case studies, national level policy reforms include • Amendments to the Education Ordinance of 1959 (Samoa) to reflect macro- economic, social development frameworks, and education policies. The amendments further empower the central ministry to include early childhood in its jurisdiction. • Compulsory Education Act • Early childhood policies • Special needs education policies • Language policies • HIV and Health education policies • Policies on a viable alternative to formal secondary education • TVET Policy • Adult Literacy Policy. The policies provide valuable guidelines on expected standards and procedures. Their impact on the EFA Goals is yet to be realised with full implementation. Some of the strategies responsible for progress so far on the EFA Goals have been highlighted in the discussion on inputs and processes. Another very important strategy for EFA progress in the Pacific is regional collaboration in the formulation and implementation of the Forum Basic Education Action Plan. It remains to be demonstrated how critical these policies and strategies are to achieving the EFA goals. 5.2 Forum Basic Education Action Plan, EFA and PRIDE EFA is at the forefront of regional planning structures, financial and monitoring mechanisms. The Pacific Forum Ministers of Education adopted in May 2001 the Forum 29 Basic Education Action Plan (FBEAP) at the Ministers meeting in Auckland New Zealand. Ministers from the Cook Islands, Federated States of Micronesia, Fiji, Kiribati, Marshall Islands, New Zealand, Niue, Papua New Guinea, Solomon Islands, Samoa, and Tonga, attended the meeting with Australia, Nauru, Palau, Tuvalu and Vanuatu also represented. Forum members recognized that development of basic education takes place in the context of commitments to the world community and meeting the new demands of the global economy, which should be balanced with the enhancement of their own distinctive Pacific values, morals, social, political, economic and cultural heritages, and reflect the Pacific’s unique geographical context. The following vision and goals were agreed upon for the Forum members: Vision13 Basic education as the fundamental building block for society should engender the broader life skills that lead to social cohesion and provide the foundations for vocational callings, higher education and life long learning. These when combined with enhanced employment opportunities create a higher level of personal and society security and development. Goal To enhance universal and equitable educational participation and achievement. To ensure access and equity and improve quality and outcomes. In adopting this vision, Ministers reaffirmed their commitment to the Dakar 2000 Education for all Framework for Action goals. In addition Ministers committed themselves to the following specific strategies: The promotion of different forms of secondary and vocational education To review the curricula of training centres and non-formal education programmes to match skills taught (outcomes) with the requirements for employment and livelihood in the traditional subsistence economy 13 Pacific Forum Secretariat “Forum Basic Education Action Plan – 2001” Auckland New Zealand 15 May 2001 30 Develop non-formal education and work-based programmes in co-operation with civil society and the private sector. Promote the role of civil society in providing non-formal skills training. Key components outlined in the FBEAP include National and Regional Development Context – policy and planning frameworks, Delivery and Resourcing Basic Education, Improving Quality in Basic Education, Technical and Vocational Education (TVET), Financing Education, Developing Partnerships, Gender and Equity Issues, and Teaching of Governance and Civics. It can be seen from the details that EFA Goals are embedded in the FBEAP. Annex 2 includes a copy of the FBEAP. To support the implementation of the FBEAP, the Ministers and the Forum Secretariat in cooperation with relevant Pacific organizations involved in education, including UNESCO, developed the Pacific Regional Initiatives for the Development of Basic Education (PRIDE). PRIDE is funded by the European Union under its 9th EDF and by NZAID. Launched in May 2004, PRIDE is expected to run for 5 years to the end of 2008. PRIDE’s focus is to implement the Pacific Vision for Education outlined in the 2001 FBEAP. By so doing, it seeks to improve the quality of basic education in fifteen Pacific countries by strengthening their capacity to plan and deliver quality education through formal and non formal means. The project assists countries14 to develop strategic plans for education as well as to implement, monitor and evaluate their plans, providing capacity building activities for educators at national, sub-regional and regional levels. The benchmarks, principles and criteria developed by PRIDE to apply to national education sector plans are derived from the Forum Basic Education Action Plan, and are explicitly linked to the EFA Goals. The Forum Basic Education Action Plan and PRIDE are Pacific regional initiatives that are fundamental to the achievement of the EFA Goals. They are indicative of a strong political commitment at the highest levels of government in co-operation with civil 14 15 countries are served by PRIDE are Cook Islands, Federated States of Micronesia, Fiji, Kiribati, Marshall Islands, Nauru, Niue, Palau, Papua New Guinea, Samoa, Solomon Islands, Tokelau, Tonga, Tuvalu, Vanuatu 31 society, to policies and strategies to achieve the Dakar Framework. The financial and technical support available through PRIDE ( see Figure 1) provides real and enabling support to the implementation of individual country’s National Strategic Plans and EFA Plans. The FBEAP is reviewed annually by Ministers of Education of the Pacific Forum. In its recent review in January 2004 in Apia, the ministers agreed to reactivate a subcommittee established in 2002 to monitor regional activities including PRIDE. The Pacific Forum Ministers of Education through its planning, financial and monitoring structures is fundamentally important to the achievement of the EFA goals. Figure 1: Relationships between FBEAP, PRIDE and Country EFA Plan FORUM BASIC PRIDE EDUCATION ACTION PLAN Supplies funds based on This is the Policy level for applications from regional actions. countries to support EFA It integrates with EFA plans NATIONAL STRATEGIC PLANS COUNTRY EFA PLANS 6. REMAINING CHALLENGES Terms of Reference 6: What are the remaining obstacles in achieving EFA in the region? What are the key challenges still associated with achievement of the EFA goals in this region? The synthesis of the Pacific countries’ EFA Plans 2004 identified four principal challenges faced by the region with regard to each of the EFA Goals. These are 32 Human resource challenges in terms of the quality and quantity available Physical resource challenges in terms of facilities and equipment National Governance and administration challenges in terms of policies and co- ordinating mechanisms Community-level challenges such as awareness and linkages The proposed reforms and actions target these challenges and progress has been made at the level of inputs and processes as illustrated in Tables 7 and 8. The key challenges associated with the achievement of the EFA Goals in the region can be grouped under The nature and situation of the EFA Plans The level of coverage of the EFA Goals Resourcing Co-ordinating mechanisms Monitoring and Evaluation The nature and situation of the EFA Plans While all of the Pacific EFA Plans are intended to be sector-wide long term plans, the emphasis is on the formal sector. The problem-solution analyses highlight reforms in human resource quality and quantity, improvements in infrastructure, curriculum structures and materials, policies and administration, and community participation in the formal education sector. Yet if we note the target groups in each EFA Goal, these are: EFA Goal 1 - ‘especially for the most vulnerable and disadvantaged children’ EFA Goal 2 – ‘all children, particularly girls (or boys in the case of many Pacific nations), children in difficult circumstances, those belonging to ethnic minorities’ EFA Goal 3 – ‘all young people and adults.. through equitable access to appropriate learning and life skills programmes’ EFA Goal 4 – ‘adult literacy, especially women.. access to basic and continuing education’ EFA Goal 5 – ‘gender equality..ensuring girls’ full and equal access to and achievement in basic education of good quality’ 33 EFA Goal 6 – ‘recognised and measurable learning outcomes are achieved by all especially literacy, numeracy, essential life skills’ The target populations in the EFA Goals are not only in the formal sector, many may well have been pushed out by the formal sector or as a result of circumstances have not entered the formal sector. The achievement of the EFA Goals will be enhanced for the Pacific through assessments that identify the target groups and an approach that focuses on a diversity of provision and delivery modes in education within an integrated and holistic education system. The total needs of a population can be met only through many modes and it is acknowledged that the formal sector alone is not adequately meeting the needs of diverse populations. Non-formal education should be seen as an integral part of a holistic education system capable of delivering basic education through a diversity of ways to different groups. Consideration of the non-formal sector allows cross-sectoral linkages that all contribute to the achievement of the EFA Goals. Besides the education ministries, there are other ministries, non-government organisations, and civil society organisations whose policies and strategies are directly linked to the EFA Goals. These cross-sectoral linkages need to be made explicit in the EFA Plans, implementation, monitoring and evaluations. Monitoring and Evaluation The difficulty in obtaining progress reports for this overview highlights a key weakness in the EFA developments. While EFA Plans have included monitoring indicators, the indicators need to be measurable, and the mechanisms to systematically track performance need to be operational. To be effective, a monitoring and evaluation system needs to be based on a sound problem analysis and establishment of the cause-effect relationships between the problems have specific, measurable, attainable, relevant and timely indicators include a focus on process indicators 34 separate monitoring of achievement of actions from the evaluation of impact on the EFA Goals establish structures, roles and responsibilities for steering, monitoring and evaluating EFA Goals have a reliable information and data management system have clear specific scheduled reporting procedures and follow through for accountability have financial backing The level of coverage of EFA Goals in EFA plans Adult education, gender equity and skills development are areas that generally do not feature highly in the EFA Plans for the Pacific. The youthful nature of the Pacific’s population and the inability of the waged employment sector to absorb high numbers of school leavers have been key considerations in the Forum’s Basic Education Action Plan. A review of the EFA Plans to align with the Forum Basic Education Action Plan should advance the achievement of the EFA Goals. Resourcing Although the Pacific EFA Plans are partly implemented through external funding and partly through internal funding there is an ongoing need to secure adequate financial resources, and technical support for the implementation of the EFA Plans. It is difficult to supply detailed information on the level of GNI given to education in the various countries as the data has not been made available by national reporting systems. Institutional capacities in terms of the quality and quantity of people, and having systems in place also hamper the smooth implementation of EFA Plans. Co-ordination The institutional arrangements for EFA co-ordination mostly include an EFA coordinator and an EFA forum. The effective functioning of these mechanisms is variable. The coordinators have full time roles in the ministries and EFA is an added responsibility. The 35 EFA forums have been active in the development phase of the EFA Plans but have not been as active in the co-ordination and monitoring of implementation. The separation of the EFA Plans from the National Plans (be these long-term strategic plans or medium-term action plans) that is observed in the case of the reporting countries is undesirable because it creates another level of administration requiring additional human resources in countries where resource constraints is a real obstacle. The countries are slowly moving towards integration with national plans in fully developed sector wide approaches. However, the evolution is very slow and there is a need for acceleration. The Forum Basic Education Action Plan articulates the Pacific Vision for Education and integrates the EFA Goals fully. If National Plans are aligned to the FBEAP, and therefore incorporate the EFA Goals, a workable mechanism for the coordination of EFA may well be using the existing ministries’ organisational planning structures so that the goals and strategies are part and parcel of the relevant divisions’ outputs and budgets, and importantly in the monitoring and annual reporting of outcomes. The EFA coordinator’s role is important for administration and maintaining cross-sectoral linkages. The EFA forum is important for steering, coordinating, and monitoring progress. The EFA Plans however could be more efficiently implemented and monitored as part of the outputs of line ministries and other relevant organizations within a national monitoring and evaluation framework. 7. CONCLUSION Five years after Dakar, the 14 countries of the Pacific region demonstrate evidence of a strong commitment to the EFA Goals as a region and as individual countries. The adoption in 2001 of the Forum Basic Education Action Plan (FBEAP) reaffirmed the region’s commitment to the Dakar 2000 Education for all Framework. The adoption of the Pacific Regional Initiatives for the Development of Basic Education (PRIDE) is a resourcing mechanism that ensures the FBEAP, and therefore EFA is operational. 36 All of the Pacific countries are at the stage of implementing their EFA plans approved15 by relevant national authorities. The implementation is aided by a commitment of inputs and processes that range from financial, human and physical resources, legislation and policy reforms to alternative programme designs and delivery. The extent to which these inputs and processes contribute to the achievement of the EFA Goals is not easily verified at this point. Although EFA Plans include indicators, some of these need adjustments so that they are measurable with specific timeframes. Further the reforms and indicators address part of the total package which means the EFA Plans should be seen as dynamic and evolving. A number of challenges remain to be sorted to advance progress towards the EFA Goals by 2015. These are: increasing the internal sustainability of the EFA and credibility of the EFA plans by implementing viable information, data management, monitoring and evaluation system using a holistic education system approach that integrates the formal and non- formal sectors in the planning and implementation strategies collaboration across sectors on all the EFA goals and mapping out coverage of EFA in each organisation’s strategies to increase efficiency and sustainability, explore the strengths of working off one planning document – the National Plan, which integrates the Forum Basic Education Action Plan and therefore the EFA Goals, with a specific tracking mechanism for EFA indicators clear statements of target populations as identified in the EFA Goals or as appropriate in the local contexts the need for skills development perspective to be included within every goal 15 Cook Islands maintain their plan has not been officially signed off. 37 rethinking the level of coverage of EFA Goal 3, Goal 4, and Goal 5 given the nature of Pacific populations providing technical support to each country to design and implement monitoring and evaluation systems, which the EFA co-ordinators report against. There appears to have been a significant misunderstanding about the nature and status of EFA planning in the Pacific. The current separate existence of EFA plans from national plans and the focus of the content on reforms and actions necessary to progress towards the goals put the stress on monitoring of subordinate indicators rather than on the achievement of goals. This needs to be rectified. It is evident that the EFA coordinators did not understand that their brief includes monitoring and evaluation of the progress towards goal achievement. A regional monitoring system, consistent with the focus on goals and progress from the baseline, needs to be designed to provide clear, accessible information. The mechanism could be similar to the MDG reporting arrangements facilitated by the Secretariat of the Pacific Community through a contract with UNDP and link EFA with MDG in line with the Forum Basic Education Action Plan. 38 APPENDIX 1: EXAMPLE OF EFA ACTION PLANS INDICATORS FROM TWO OF THE REPORTING COUNTRIES: COOK ISLANDS PALAU 39 COOK ISLANDS ACTION PLAN 2003 EFA Goal Proposed reforms Actions Indicators 1. .1 Inform parents on mental (i) informing parents on mental Information pack on pre-natal, EFA Goal 1. development of a child before, development of a child before, post-natal during pre-school Expanding and improving during and after pre school during and after pre school development in place and comprehensive early childhood distributed to parents care and education, especially for the most vulnerable and 90% of parents or potential disadvantaged children parents are aware of developments before birth and can positively participate in those developments 1.2 Promoting activities parents (ii) promoting activities parents Strategies promoted through the can do at home to develop the can do at home to assist their most effective means; television, foundations of literacy and children develop the radio and brochures. numeracy foundations of literacy and 1. 90% of parents take numeracy advantage of simple home activities to develop basic literacy and numeracy skills. 2. improved achievement levels at G2, G4 and G6 monitoring tests 1.3 parents and teacher roles are (iii) parents and teacher roles are 1. policy on school committee better defined and partnership better defined and partnerships developed formed formed 2. policy guidelines for schools on strengthening “Home and School” partnership Relationship and partnership between parents and school improved 1.4 develop resources to assist (iv) develop resources to assist Dialect resources for preschool 40 parents form foundations of parents develop early literacy and developed distributed literacy and numeracy at home numeracy skills 90% of students at pre-school have good foundations in literacy and numeracy 2. Ensure teachers are better trained and qualified to teach at preschool level by; 2.1 Promoting qualifications (i) Promote qualifications Promotion programs to target pre- available for pre-school available for pre-school teaching school teachers teaching Learning achievement of preschool students improved- reflected in the G2 monitoring tests 2.2 Ensure regular up-skilling of (i) regular up-skilling of current Monthly information sharing with current pre-school teachers pre-school teachers Pre-school teachers; Regular revision of delivery methods through pre-school association Standard of education at preschool level improved 2.3 Ensuring teachers are trained (i)Ensuring teachers are able to Programs to identify children with to identify children with identify students with special special learning needs included in special needs at an early age learning needs at an early level the education system 90% pre-school teachers are able to identify and manage children with special learning needs 2.4 media campaign to entice (i) promote ECE teaching as an People are aware of the ECE area people into taking ECE attractive and rewarding career and have between 20-30 teaching as a career applications for scholarships 3.1 Develop and identification (i) develop identification and System to identify and support in and support system in support system in partnership with place partnership with other other stakeholders 41 stakeholders 100% participation at pre school level 4. equip schools with resources to assist with the educational development of children 4.1 The school committee, (i) appropriate resources are All Early Childhood Education parents and the school will developed and maintained for center are equipped to work together to ensure ECE children at ECE level accommodate the educational classes are well resourced needs of young children (this activity will include research on the appropriate types of resources for cognitive development in children) and to also ensure maintenance of these equipments 4.2 the Ministry of Education will (i) produce reading books and 20 reading books of each type and ensure appropriate ECE other resources to develop in both languages (English and resources are developed to language and number skills Cook Islands Maori) are a promote literacy and available in each ECE enter numeracy skills for use in schools 90% children are able to meet the learning outcomes of literacy and numeracy as stated in the Early Childhood Education Curriculum Framework 42 EFA Goal Proposed reforms Actions Indicators EFA Goal 2 1. Enforcement of the Education Ensuring that by 2015 all children Act have access to and complete free and compulsory primary education of good quality. 1.1 Appointment of Truancy (i) Appointment of Truancy All truancy problems are officers for Education Officer investigate and resolved, and attendance of primary school students in close to 100% 1.2 Work in partnership with (i) work with Social Welfare All social issues relating to the Social Welfare to ensure other agency to ensure support is cause of truancy are appropriately issues associated with truancy are provided for truants addressed resolved; (i) Establish mobile resources for Mobile resources developed vulnerable and disadvantaged transport and manpower purchased. children Those who have difficulty accessing education in the short term can have access to resources and continue with education 4. Provision of quality teachers and education for children with special needs 4.1 all teachers at all levels be 4.1 teacher training to cater for Teacher training program in place properly trained to accommodate the needs of children with special the needs of children with special learning needs and children with learning needs and special needs special needs 70% of children with special learning needs participate at various levels of society. 4.2 schools work in partnership Parents are educated on how to Parents education program ready 43 with parents to help them with the assist with the education of their for delivery learning needs of their children children with special learning needs and special needs 90% of parents participate in the education of their children 4.3 guidance counselor for Employ a Guidance Counselor for Guidance counselor employed with primary and secondary school primary and secondary school conditions of employment included students students in performance contract That 100% of children with special needs are able to take part in the learning process. 5. Parents participation in the education of their children 5.1 Encourage and strengthen 5.1 regular parents/ teacher Regular newspaper and television partnership and good working meetings and monthly publication clips prepared. relationships between teachers and of educational newsletter parents to ensure parents have full information about the education of their children through regular meetings like parents evenings or individual meetings or other avenues 50% more parents are aware of activities they can do to develop education skills EFA Goal Proposed reforms Actions Indicators 1.1 develop and deliver appropriate 1.1 Develop and deliver life-skills The development of various life- EFA Goal 3 life-skills courses for young people programs skills programs complete Ensuring that the learning needs of like agriculture, domestic skills, all young people and adults are met basic maintenance skills, healthy 44 through equitable access to living, technology and computer appropriate learning and life-skills skills, arts, crafts and culture programs Young people are able to perform various skills to support themselves 1.2 programs for people with a 1.2 develop and deliver programs The development of programs for disability for people with disability people with disability complete Young people with disability are able to participate in various levels of society 1.3 mobilize resources for delivery 1.3 Mobilize resources for delivery Resources are available for the of programs of programs provision of the above programs 2. Ensure access for everyone to life- 2. Media campaign to raise Media strategy complete. Campaign skills programs awareness started 95% of eligible young people apply and are accepted into a course 2.1 media campaign to raise 2.1 Mediation with various All young people, regardless of awareness organizations/business in the islands of residence acquire a skill to community to provide lifeskills generate employment or to survive progs in a modern world. 3.1 Develop and deliver targeted 3.1 Educate parents and provide 80-90% of parents are able to educational programs to educate them with resources educate their children at home on parents on effective strategies to healthy social behaviour bring understanding and stimulate discussions about sexual issues with their children 3.2 Develop a system to follow up 3.2 Monitor community programs Community programs are and monitor existing community continuously improved to meet the health programs changing needs of the community 3.3 Employ a Counsellor to work 3.3 counselor for healthy behaviour At risk young people are helped to 45 through sports, church organizations in schools curb risk-taking behaviour and parent groups to train them to advise and educate young people on the value of healthy behaviour 3.4 alert children to healthy sexual 3.4 alert children to healthy sexual Health educators prepare and deliver behaviour at a younger age than behaviour at last year of primary health awareness progs in primary secondary school students schools Greater awareness of changes to human body before changes take place EFA Goal Proposed reforms Actions Indicators EFA Goal 4. 1. Criteria for identifying and 1. criteria for identifying and Comprehensive criteria are Achieving a 50 per cent assessing literacy must be assessing adult illiteracy developed to identify and assess improvement in levels of adult developed. The criteria must illiteracy rate amongst adults literacy by 2015, especially for include speaking, reading, writing women, and equitable access to and understanding either English or basic and continuing education for Cook Islands Maori (including any all adults. one of the Cook Islands Maori dialects) 2. there need to be strategies developed to eliminate the stigma of being illiterate through 2.1 media promotion 2.1 Media promotion Media strategy complete. Campaign started 2.2 community awareness 2.2 community awareness Community awareness program in programs to generate acceptance of programs place people who are illiterate 3 community programs conducted in each Vaka on Rarotonga and 4 on each of the respective islands Communities are aware of the 46 problem and will positively contribute to the encouragement of people who are illiterate to seek help 2.3 developing and delivering 2.3 develop and deliver literacy 80% or more increase of literacy educational programs to address the programs rate among adults various illiteracy problems of adults 3. Evaluate the project to check 3. Monitor and evaluate project to The target of 90% or better of that an 90% improvement is ensure target is achieved people who took the course has achieved on the adult literacy rate been achieved EFA Goal Proposed reforms Actions Indicators EFA Goal 5 Eliminating gender disparities in NOT A FEATURE OF primary and secondary education THE ACTION PLAN by 2005, and achieving gender equity in education by 2015, with a focus on girls’ full and equal access to and achievement in basic education of good quality. 47 EFA Goal Proposed reforms Actions Indicators EFA Goal 6 Improving all aspects of 1. Develop appropriate resources for 1. develop dialect readers to improve Literacy and numeracy resources the quality of education and ensuring the improvement of literacy and literacy and consequently, numeracy developed excellence of education with numeracy skills skills measurable learning outcomes All schools have appropriate resources for the development of literacy and numeracy skills 2. Empower Curriculum Advisors to 2. Empower Curriculum Advisors to Program for empowerment complete advise and train teachers on the monitor and train teachers to teach development of literacy and literacy and numeracy skills numeracy skills By 2005 all curriculum Advisors know how to teach and develop effective strategies for developing literacy and numeracy skills 3. Develop a pre-service training 3. Develop a pre-service training Programs for developing literacy and program for teaching literacy and program for teaching literacy and numeracy skills is included in the numeracy numeracy Cook Islands Teachers College Curriculum Framework 48 PALAU ACTION PLAN 2002-2010 EFA Goal Proposed reforms Actions Indicators EFA Goal 6. Priority 1 Improving a. Provide training to classroom (i) determine appropriate training Training need assessment reported all aspects of the quality of teachers to improve their teaching for classroom teachers education and ensuring excellence capabilities of all so that recognised and measurable learning outcomes are achieved by all, especially in literacy, numeracy and essential life skills (ii) design appropriate training Training programs approved programs for classroom teachers (iii) Provide appropriate training Enrolment list of classroom teachers for classroom teachers in training b. Provide counseling services to (i) prepare office space and work Office space and work plan all elementary school students plan for school counselors approved (ii) Hire three professional Personnel actions for counselors in counselors to serve elementary personnel file. students (iii) Provide counseling services to Record of counseling sessions and elementary school students number of students served. c. Provide tutoring services to (i) prepare office space and work Office space and work plan 49 students at Palau High school, plan for tutors approved which is the only public secondary school in Palau (ii) hire three tutors to serve Personnel actions for tutors in students at Palau High School personnel file (iii) provide tutoring services to Record of tutoring sessions and high school students number of student served EFA Goal Proposed reforms Actions Indicators EFA Goal 1. Priority 2. a. establish public kindergarten (i) build and equip kindergarten Classrooms inspected and certified Expanding and improving programs at the public elementary classrooms comprehensive early childhood care schools so that all children in Palau and education, especially for the will have free access to early most vulnerable and disadvantaged childhood e4ducation at children kindergarten level (ii) develop curriculum for Curriculum approved kindergarten program (iii) provide free kindergarten Enrollment list of children in public program for all children kindergarten b. provide educational programs on (i) develop curriculum on Curriculum childhood development, care and submitted education for educators, parents, childhood development, care, and And approved and other adults education (ii) prepare childhood education Materials printed and ready for use materials based on curriculum (iii) provide education programs to List and number of people receiving educators, parents & community educational programs 50 EFA Goal Proposed reforms Actions Indicators EFA Goal 3 Priority 3 a. It is proposed that a One-Stop (i) prepare site for information Information center on Ministry chart Ensuring learning needs of all Education Information Center center young people and adults are met be established to serve as the through equitable access to center for all information about appropriate learning and life-skills all educational programs and programs opportunities for the young people as well as adults (ii) equip center with personnel & Personnel and inventory listing equipment (iii) collect and process Files at the center show information information on educational programs (iv) Disseminate information to Number of inquiries about programs public b. Develop and implement (i) conduct survey of learning needs Results of study published alternative and innovative educational programs to meet the learning needs of students, especially at risk, drop outs, and retained students, as well as adults (ii) develop alternative educational Description and schedule of programs for students and adults programs available (iii) Recruit students and adults for Registration records indicate educational programs students and adults recruited (iv) implement programs for Number of students and adults student and adults enrolled in the educational programs c. provide more effective training (i) provide training to training cadre Training agenda and reports on file 51 on current HIV/AIDS issues and and policymakers refined HIV-AIDS policies and procedures to the training cadre, students and staff, parents teachers associations (PTA) young adult and the general public (ii) refine current HIV-AIDS Revised HIV/AIDS policies and policies and implement health health related school policies at related school policies schools and offices (iii) conduct training on policies to Training schedule agenda, report students, staff, PTAs, and public and attendance sheets on file. d. implement skills based activities (i) develop skills based activities Documentation of skills based into classroom instruction to for health education activities on file. promote healthy living and prevention of important health problems (ii) provide training to teachers on Training agenda and participants skills based activities attendance sheet (iii) implement skills based Lesson plans and class observations activities in all public schools reflect skills based activities. EFA Goal Proposed reforms Actions Indicators EFA Goal 2 Priority 4 a. to develop and implement a (i) create an office to office track Memo creating Ensuring that by 2015 al children, system for tracking students and students On file particularly girls, children in handling student absenteeism and difficult circumstances and those non-compliance of compulsory belonging to ethnic minorities, have education access to and complete free education compulsory education of good quality. 52 (ii) design tracking system for Tracking system approved students (iii) implement the tracking system Absenteeism and non compliance for students reports b. increase equitable access by (i) increase communication Short-wave radio installed children in difficult circumstances, capability for remote schools including ethnic minorities and handicapped children, to primary education (ii) provide computer technology Laptop computers at remote schools education to ethnic minorities (iii) build access ramps and related Access ramps and related features features for handicapped children installed EFA Goal Proposed reforms Actions Indicators EFA Goal 4. Priority 5 a. provide basic literacy program (i) conduct a survey on basic Results of survey analysed Achieving a 50 per cent for adults literacy needs improvement in levels of adult literacy by 2015, especially for women, and equitable access to basic and continuing education for all adults. (ii) develop basic literacy program Basic literacy program approved for adults (iii) implement basic literacy Adult portfolio for the program program in the states b. provide basic and continuing (i) analyse survey made for literacy Analysis report on survey filed education to adults in the outlying program states of Palau 53 (ii) design basic and continuing Basic and continuing education plan education programs for adults approved (iii) provide basic/continuing Enrollment listing of adults in the education programs at outlying programs states EFA Goal Proposed reforms Actions Indicators EFA Goal 5 Priority 6 Eliminating gender disparities in DOES NOT FEATURE primary and secondary education by 2005, and achieving gender equity in education by 2015, with a focus on girls’ full and equal access to and achievement in basic education of good quality. 54 References Dr Gerald Haberkorn (July 2004) Current Pacific population dynamics and recent trends SPC Demography Population Programme Pacific Forum Secretariat (15 May 2001) Forum Basic Education Action Plan – 2001 Auckland New Zealand 15 May 2001 Pacific Regional Strategy Paper 2002-2007 cited in the Synthesis of Pacific Education for All Action Plans 2004 Secretariat of the Pacific Community (2004)Pacific Regional MDG Report 2004 Secretariat of the Pacific Community (2004) PRISM ( Pacific Region Information System Management ) UNESCO Division of Educational Policies and Strategies Education Sector 18/10/2004 UNESCO Office for the Pacific Apia Synthesis of the Pacific Education for All Action Plans 2003, 2004. UNESCO/IIEP ‘Reinforcing /incorporating skills development in the Samoa National EFA Plan. Authors Afamasaga, G.T., Moli, S.F., Kruse-Vaai, E. March 2005 UNESCO Survey Report Update on Planning and Implementing EFA 18 October 2004 55
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