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2. Sector Wide Management Framework
2.1 Institutional and Change Management Processes
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This ESSP gives increased attention to the need for more fundamental institution building and change management processes. The ESSP recognises that a narrow focus on improved operational support and staff training may not be sufficient to reform institutions. The ESSP gives increased priority to a) leadership development at various levels, b) greater definition of powers, authority and responsibility through the anticipated education law and c) processes which can facilitate changes in staff deployment patterns, work planning processes and incentive and reward systems.
Key implementation processes will consist of a) revisions to staff job descriptions and work priorities, b) further delegated authority to departments and institutions, including increased flexibility in the use of operational budgets, c) selective changes in institutional status, including establishment of some institutions as Public Administration Institutions (PAIs) and d) early issue of specific regulations and operational guidelines related to the education law, once approved.
2.2 Central and Provincial Planning and Monitoring Systems
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The focus of central and provincial planning and monitoring system development will be to strengthen capacity at the sector level. Key principles and outcomes will include a) extension of medium-term expenditure planning and budgeting through a revised MTEF 2004-08 and a shift towards policy and results led program budgeting, b) completion of an organisational audit and capacity building action plan by 2005, c) selective strengthening of financial accounting and monitoring systems through a provincial financial MIS and appointment of public accountants at various levels and d) selective institutional development for improved financial management (e.g. some higher education institutions). Individual reviews and action plans for these developments will take place in 2005/06.
This ESSP will further extend the current education sector performance and impact monitoring systems through a number of measures including a) broadening the scope of the EMIS, incorporating data from decentralised personnel, financial information systems, b) extending the range of stakeholders participating in ESSP reviews (e.g. private sector higher education providers), c) improving consultative arrangements with ESWG and the NEP and d) an annual program of operational research and pilot studies. It is anticipated that work programs in these areas will be finalised as part of the ESSP 2004-08 review in late 2004. A key focus will be strengthening provincial performance monitoring systems through preparation of annual provincial education development plans.
2.3 District and School/Institutional Management Systems
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The broad principle will be to enable district and school/institution levels to manage day-to-day operational activities and budgets. Anticipated system outcomes will include a) capacity building action plans for district BMCs, clusters and schools, especially improved guidelines for better information flow, analysis and reporting, b) revised guidelines for use of MoEYS training institutions to help better match human resource needs and staff development programs, including facilities upgrading, staff training and curriculum development,
c) expansion of education planning, management and accounting training programs through MoEYS and other providers and d) strengthening provincial and district personnel deployment, planning and management systems through central and provincial technical committees. These systems will be facilitated through revised guidelines, especially for staffing norms at provincial, district and school levels. These guidelines will draw on a district education office functional analysis conducted in late 2004.
2.4 Financial Planning and Management Systems
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ESSP financial planning and management systems will be extended to ensure effective pro-poor budgeting through system and program interventions. MoEYS systems will be upgraded to respond to a) parental contributions to basic education costs, b) planning for increased non-Government/private spending on post-basic education alongside poverty targeted subsidies, c) improved targeting systems for pro-poor capital spending on education facilities development and d) improved accounting and audit of Government, parental and donor support for education.
ESSP will extend measures to improve resource predictability through a) active engagement in the MTEF process, b) strengthened consultative processes with MoEF and CAR through review of Education Management Finance Committee (EFMC) arrangements, c) review of existing inter-ministerial Prakas and sub-decrees in response to the revised PAP framework and d) active engagement in other inter-ministerial financial planning arrangements (e.g. the PAP cash management taskforce). In the medium-term, it is anticipated that MoEYS will play a lead role in implementing program based budgeting, consistent with revised PFM guidelines.
The initial ESSP program budget allocations are shown in Table 1 These allocations will be reviewed annually, based on a) agreement of levels of Government recurrent and capital budget allocations, b) projections of annual external assistance for facilities investment, recurrent budget support and capacity building and c) review of program cost-effectiveness and impact.
Table 1: Proposed ESSP 2004-08 Program Allocations
| (Million Riels , Current) |
2004 |
2005 |
2006 |
2007 |
2008 |
| Pap Recurrent Program Priorities |
103,500 |
117,400 |
122,800 |
130,600 |
149,300 |
| 01 Education Service Efficiency |
14,500 |
16,700 |
17,100 |
17,500 |
19,200 |
| 02 Early Childhood Education (ECE) |
500 |
600 |
800 |
800 |
1,000 |
| 03 Primary Education Quality And Efficiency |
34,600 |
38,600 |
39,000 |
40,000 |
44,100 |
04 Lower Secondary Education Access, Quality
And Efficiency |
7,500 |
13,200 |
15,400 |
18,800 |
24,100 |
05 Upper Secondary Education Access
And Equity |
2,500 |
3,700 |
4,800 |
5,700 |
7,000 |
06 Higher Education Quality, Efficiency and
Equitable Access |
4,000 |
5,000 |
5,500 |
6,000 |
6,000 |
| 07 Continuous Teacher Education |
9,700 |
10,300 |
10,300 |
10,800 |
11,200 |
| 08 Core Instructional Materials |
13,000 |
13,500 |
13,800 |
13,700 |
14,500 |
| 09 Non-Formal Education Expansion |
5,800 |
6,300 |
6,700 |
6,300 |
7,500 |
| 10 Youth And Sport Development |
900 |
1,100 |
1,200 |
1,200 |
1,700 |
| 11 Strengthened Monitoring Systems |
7,700 |
5,100 |
3,200 |
3,200 |
4,100 |
| 12 Secondary Scholarships For The Poor |
2,800 |
3,300 |
5,000 |
6,600 |
8,900 |
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| Capital Program Priorities |
85,000 |
110,000 |
113,000 |
100,000 |
90,000 |
| Facilities Expansion |
55,000 |
80,000 |
83,000 |
70,000 |
60,000 |
| Capacity Building |
30,000 |
30,000 |
30,000 |
30,000 |
30,000 |
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| Capital And Recurrent Total |
188,500 |
227,400 |
235,800 |
230,600 |
239,300 |
The recurrent program priorities, through the PAP mechanism, have been rationalised consistent with ESP 2004-08 priorities. Key features consist of a) an increase in per-student expenditure at primary level for quality improvement, b) increased secondary program allocations in accordance with enrolment growth and quality improvement, c) increased higher education program allocations in accordance with enrolment growth and quality improvement, d) growth of NFE re-entry programs, e) expansion of youth and sport activities, especially school physical education and f) need for more lower and upper secondary scholarships for the poor, as more schools are provided in poor communes. These allocations may be supplemented by discrete donor/NGO support, especially for HIV/AIDS awareness and scholarships for the poor.
It is recognised that effective ESSP implementation will require a review and action-plan for procurement system development, in consultation with MoEF. Key anticipated features will include a) agreed guidelines for instructional materials procurement, b) more flexibility at the school level for procurement of basic supplies and c) agreement with MoEF on procurement systems which allow for effective internal and external audit. It is anticipated that these guidelines will be finalised by mid 2005.
2.5 Education Facilities Planning and Management Systems
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MoEYS will continue to adopt a gradual approach to decentralisation of facilities planning and management, based on ongoing review of available capacity and recent decentralisation in selected provinces, where a Provincial Education Facilities Committee (PEFC) has been constituted.
Central MoEYS responsibilities will continue to be a) approval of annual programs and budget allocations, b) overseeing progress and compliance with agreed guidelines, c) commissioning and approving program-required accounts and reports, and d) ensuring that agreed audit requirements are satisfied. MoEYS technical departments will be responsible for overall facilities selection and targeting criteria. MoEYS DMSP will be responsible for managing and supervising implementation through private contracting and community groups.
2.6 Higher Education Planning and Management Systems
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Higher education planning and management systems have yet to be finalised. Anticipated features are likely to consist of a) PAI status for all selected HEIs, including establishment of a board of governors, b) establishment of criteria for staff qualifications, experience, capability and expected performance outputs, c) revised guidelines for Department of Higher Education responsibilities for enabling public/private partnerships, quality assurance and associated information systems development and d) agreed working arrangements with the ACC and HEIs on performance management monitoring and reporting systems. It is anticipated that an overall action plan will be finalised in 2005.
2.7 Legislation, Governance and Regulatory Framework
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The ESSP implementation will be underpinned by new legislation and regulations, set out in an education law expected to be approved in 2005. Key features will include a) guidelines on use of parental and private contributions to schools and other institutions, b) guidelines on governance of schools and post secondary institutions and c) issue of selective new regulations and administrative guidelines to new powers and responsibilities of education authorities, parents and community associations.
The work program will include formulation of selected pieces of education regulatory reform which will include a) rights and obligation of education personnel, b) duties of commune Sangkat council in education, c) signing of contract and responsibilities of public school managers, d) private participation in education service delivery and e) transferable educational credits and evaluation mechanisms or quality assurance.
Further regulations will be issued in relation to a) national examinations and tests of general education and equivalency testing, b) structure of administrative hierarchy and educational management, c) education management and governance at public and private education establishments, d) the ministry in charge of education internal financial audit committee, e) public school internal budget and financial monitoring committee and f) violation of the rights of learners, educational personnel, parents/guardians.
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