Learning for All Meeting Country Paper of the Government of the Republic of the Union of Myanmar

Transcription

1 Learning fr All Meeting Cuntry Paper f the Gvernment f the Republic f the Unin f Myanmar Backgrund and Cntext United Natins General Assembly, United Natins, New Yrk; September 2013 After a transitin t civilian rule in 2011, Myanmar is embarking n a perid f extensive plitical, ecnmic and scial refrm under the leadership f President Thein Sein. The Gvernment has cnsistently priritised educatin refrm as a key element f its verall sci-ecnmic develpment strategy, and a Gvernment-led Cmprehensive Educatin Sectr Review (CESR), endrsed by the President, is currently underway. The CESR is a critical first step twards delivering imprved educatin utcmes, thrugh imprved plicy and planning based n up-t-date data and in-depth analysis f the current situatin. The CESR, supprted with crdinated technical expertise frm ver 15 Develpment Partners, strives t: a. Develp a knwledge-base n the strengths and challenges in the Myanmar educatin system and identify areas fr refrm; b. Supprt and cntribute t the develpment f evidence-based plicies, legislatin and educatin sectr imprvements; and c. Develp csted educatin sectr plans. Phase I f the CESR (the Rapid Assessment ) is cmplete and has been cnsulted n widely. The critical cnstraints identified fr this discussin paper are drawn frm the findings f the Rapid Assessment Reprt. Cncurrent with the CESR prcess t develp a lng term strategy fr educatin refrm, the Gvernment is als fcusing n the imprtance f delivering tangible results in the immediate term, and is mving frward with a number f quick wins aimed t make rapid imprvement t educatin utcmes fr Myanmar children. The educatin budget has tripled since 2010, free text bks and exercise bks and sme mney fr statinery are being prvided t all primary schl children, teacher salaries have greatly increased, and a majr schl grant and student stipend prgram is being implemented t ensure that apprpriate inputs are prvided t schls and help address equity issues, as well as supprt a decentralisatin agenda. While plitical cmmitment t address educatin issues is strng, there are many cnstraints t achieving universal primary educatin. The mst recent MDG Reprt fr Myanmar (final draft, 2013) ntes that while the cuntry is n track t reach its yuth literacy target fr MDG2, prgress twards UPE has been slw, with nly 75 per cent f pupils starting Grade 1 reaching the last grade f primary (Grade 5). Fr MDG3, the Reprt ntes that gender parity has been mre r less achieved in primary educatin, acrss sciecnmic grups and between states and regins. Hwever, secndary educatin needs t imprve in terms f participatin and equity, underlining the challenges that remain fr the cuntry t achieve the MDGs fr educatin and EFA gals by While significant plitical prgress is being made twards reaching a natinal cease-fire t end lngstanding cnflict with all armed grups, sustaining delivery f educatin services t children in cnflictaffected areas remains challenging. At the same time, it is recgnised that educatin has the ptential t play a key rle in building sustainable peace in Myanmar. Cnstraints While the CESR has identified a brad agenda fr educatin sectr refrm at all levels, three verarching and inter-linked cnstraints represent key leverage pints fr effecting change acrss the system: (1) educatin financing; (2) legislatin and plicy framewrk; (3) institutinal and human resurce capacity. 1

2 Cnstraint number 1 Educatin Financing Descriptin f the cnstraint While the gvernment budget fr educatin has grwn rapidly in the last tw financial years and the trend is likely t cntinue it will take time t reach the level f ther ASEAN natins, and the glbal benchmark f 20 per cent f the natinal budget. Cmpared t the budget, spending n educatin dubled in , then tripled in Additinal resurces bth financial and human are needed t effectively deliver n plicy bjectives. Dialgue and crdinatin between the Ministry f Educatin and the Ministry f Finance (budget department) t frge clser links between planning and budgeting culd als be strengthened, and plicy fcusing n learning utcmes will be essential t establish linkages between increased spending and imprved educatin utcmes. Increased gvernment resurces als need t be equitably targeted, and translate int reduced cst burdens fr prer families, t minimize ut-f-pcket expenses incurred frm infrmal and ther fees, and stimulate demand fr educatin. Preferred slutin and impact n the relevant cnstraint Analytical wrk is underway t infrm the ways frward t address educatin financing issues. The CESR chapter n educatin financing draws n findings frm the recent Wrld Bank-AusAID supprted Public Expenditure Review (PER) and aims t review educatin budget and spending, cst per student at different levels f educatin, plicy changes, and the expenditure management prcess. The PER reprt raises the questin f whether, and hw, increases in educatin spending can lead t imprvement in learning utcmes. The Gvernment has utlined an ambitius Public Financial Management (PFM) refrm agenda, nting challenges in the current PFM system such as lack f budget credibility; limited budget cmprehensiveness and transparency; lse linkages between planning and budget allcatins; and unclear accuntability and tracking f budget expenditure. A crrespnding PFM plan has been develped by the Ministry f Finance t address these issues. As a key crss-cutting issue, implementatin f PFM refrm will have a psitive impact n scial service delivery, including educatin. In the educatin sectr specifically, the CESR Rapid Assessment Reprt highlights that additinal resurces are necessary, thugh nt sufficient, t achieve strnger results. Mre strategic and efficient budget executin, as well as strnger links between planning, budgeting and mnitring are als key t ensuring that increased resurces translate int imprved learning utcmes fr children. Striking a sustainable balance between investment and recurrent csts is als a pririty. T address these issues, in the final stage f the CESR, the analytical wrk cnducted will infrm develpment f priritized, strategic Csted Sectr Plans, tgether with a rbust Perfrmance Assessment Framewrk, which utlines plicy, strategy, and institutinal gals, targets, and utcmes indicatrs, as well as a financing plan. If cmmitment t the prcess remains strng, these dcuments will clearly articulate the results the Ministry f Educatin intends t deliver in rder t achieve balanced sectr develpment ver the shrter and lnger term. The Plans will als reflect natinal develpment pririties in line with the Natinal Cmprehensive Develpment Plan ( ), 20-Year Educatin Plan, as well as natinal and internatinal cmmitments n educatin and ther rights. Crucially, the Plans will als quantify the level f investment required t deliver these results, and s will frm a pwerful advcacy tl t infrm dialgue between the Ministry f Educatin and the Ministry f Finance n gvernment budget allcatin fr the sectr. Clarity ver the results that will accrue frm increased investment in educatin will als strengthen advcacy within Parliament fr apprval f increased resurces fr educatin. A clearly articulated plan als prvides a clear set f pririties arund which develpment partners can align their external supprt, and acts as a tl fr mbilizatin f additinal resurces t fill funding gaps identified. 2

3 Ensuring that the Plans are develped thrugh participatry appraches in line with the Gvernment s peple-centred develpment apprach articulated in the Nay Pyi Taw Accrd, the lcalized versin f the Busan Glbal Partnership fr Effective Develpment Cperatin, will als build cnsensus, legitimacy, and buy-in. This will ensure that the Plans reflect the vices f the peple, as aspired by the gvernment and meet the needs f the cuntry at this time f rapid and dynamic change. Feasibility f implementatin With the ecnmy predicted t grw at up t 8 per cent ver the next decade 1, the case fr increased gvernment investment in educatin shuld be strng. Fr imprved efficiency, develpment f the PFM refrm plan is underway, and develpment f Csted Sectr Plans fr the shrter and lnger term, mandated under Phase 3 f the CESR, are n track fr cmpletin in The cntinuing cmmitment f all parties, particularly n Public Financial Management and strengthening linkages between plicy-based planning in the educatin sectr and the natinal budget prcess, will be essential fr successful implementatin. Cntinued technical assistance frm Develpment Partners will als be required. As the CESR Rapid Assessment has revealed a wide-ranging agenda fr sectr refrm, difficult chices and trade-ffs will als need t be made regarding priritisatin and sequencing f the Plans, t ensure that they are credible, strategic, and results-fcused, with a realistic funding gap. Implementatin feasibility is als clsely linked t the need fr a guiding plicy framewrk, as well as absrptin, institutinal and human resurce capacity, as utlined belw. Cnstraint number 2 Imprved plicy and legislatin framewrk Descriptin f the cnstraint A key challenge identified in the CESR Rapid Assessment Reprt (2013, draft) is a lack f verarching legislatin fr the educatin sectr as a whle, including nn-frmal educatin, t crdinate different educatin sub-sectrs and enable the effective implementatin f plicies. Als nted is the lack f a cmprehensive and inclusive plicy framewrk fr achieving Educatin fr All, and imprving learning utcmes fr all grups acrss the whle sectr. Develping legislatin and plicy is essential t guide planning, implementatin and mnitring fr results, and building f a cmmn visin amng all related Ministries, Parliament, and the public and develpment f a new educatin legislatin is currently underway led by Parliament. A rbust framewrk will articulate the agreed gals f educatin, the results it is expected t achieve, and the rles and respnsibilities f all parties engaged in ensuring delivery f these results. Preferred slutin and impact n the relevant cnstraint A key recmmendatin f the CESR Rapid Assessment Reprt is develpment f an verarching educatin law t ensure that rights t educatin are guaranteed under the law, in line with the Cnstitutin f 2008 and internatinal cnventins Myanmar has cmmitted t, including the Cnventin n the Rights f the Child, Cnventin t Eliminate all Frms f Discriminatin Against Wmen, and the Cnventin n the Rights f Persns with Disabilities. The Reprt als advcates fr develpment f a natinal, cmprehensive and inclusive educatin plicy, which wuld be hlistic, rights based, in line with Myanmar s natinal and internatinal cmmitments, and with a strng fcus n equity t ensure that all children, yuth and adults in Myanmar are able t enjy their rights t a quality educatin, regardless f gender, ethnicity, scial r ecnmic status, gegraphical lcatin, religin, disability, r ther attribute. The plicy shuld als address disparities cncealed by natinal averages, such as thse between states and regins; urban and rural areas; high and lw incme families; and cnflict-affected areas, addressing bth supply and demand side issues. The plicy shuld als fcus n building the skills needed fr a market ecnmy, as well as emphasize the measurement f learning utcmes s that the effectiveness f educatin investments can be readily assessed. 1 ADB Study (2012) cited at 3

4 Key thematic areas fr specific plicy develpment als identified include: inclusive educatin; nnfrmal educatin; and language f instructin. Given the very cmplex linguistic diversity in the cuntry, develpment f a language plicy which meets the aspiratins f all natinal races is a key pririty. Feasibility f implementatin On the legislatin side, Parliament has already initiated dialgue with the CESR team t explre hw the CESR can infrm develpment f the draft Educatin Law. Clser cllabratin between Parliament and the Ministry f Educatin will help strengthen the drafting prcess. Develpment Partners have als indicated their willingness t prvide technical assistance t supprt the develpment f legislatin and cmprehensive plicy fr the educatin sectr, including supprt fr stakehlder cnsultatins n the drafts, disseminatin, and mnitring. Fr educatin plicy, the CESR Rapid Assessment Reprt maps ut a prpsed prcess fr develpment f a natinal and inclusive plicy fr educatin in Myanmar. This wuld need t be infrmed by all the nging analytical wrk f the CESR, integrated int the Csted Sectr Plans as they are develped, as well as underpinned with adequate budget allcatins. As indicated abve, advcacy fr funding t ensure implementatin f the plicy will be strengthened thrugh dialgue n the Csted Sectr Plans. Feasibility f implementatin f new plicy is als dependent upn absrptin, institutinal and human resurce capacity, as utlined belw. Cnstraint number 3 Institutinal and human resurces capacity Descriptin f the cnstraint The needs acrss the educatin sectr identified in the CESR Rapid Assessment are prfund. The Reprt makes ver 95 recmmendatins acrss sub-sectrs such as early childhd develpment, basic educatin, technical and vcatinal training, higher educatin, teacher training, language plicy, and curriculum, which invlve the engagement and crdinatin f 17 Ministries in rder t implement. The capacity f the Ministry t absrb increased resurces; cpe with the rate f change; implement refrms with quality, and efficiency; and deliver effective results is needs t be rapidly develped. There is much t be dne at all levels, and capacity develpment takes time. Acrss all sectrs, pressure frm the highest levels t deliver wide-reaching refrms at a rapid pace, as well as grwing demands frm civil sciety, hwever, are creating institutinal and human resurce challenges fr the Ministries t translate the refrms int sustainable and effective results. Fr example, implementatin f the planned restructure f the basic educatin system frm a 5:4:2 t a 5:4:3 mdel, plus a preparatry year f Kindergarten will have significant implicatins fr capacity building in terms f physical, institutinal, systems, curriculum, and human resurce develpment. As the cuntry develps, educatin persnnel, wh previusly had limited access t new infrmatin and what was in their textbks, nw have t change their mind sets and attitudes, and learn mre skills and subject knwledge t fster students with the critical thinking and prblem-slving skills necessary fr the 21st century. The gvernment has a plan t upgrade the current ne r tw years f pre-service teacher educatin by transfrming it t a fur-year curse. This will require intensive and lng-term investment in human resurce develpment, nt nly fr the basic educatin sectr but als in the higher educatin sectr. The dialgue n the decentralisatin agenda launched as part f the refrm prcess is als gathering mmentum, and will require significantly increased staffing, institutinal and systems develpment, as well as new technical and administrative skills t implement effectively. 4

5 Preferred slutin and impact n the relevant cnstraint Fr the Ministry f Educatin t deliver n the new initiatives sustainably, a mre systematic apprach t capacity building is needed, which fcuses n institutinal and systems strengthening, as well as individual training. T address the issues, a Capacity Gap Analysis is needed, t quantify the capacity develpment needs implicated in the refrm agenda, nt nly in the Ministry f Educatin, but acrss all Ministries invlved in educatin delivery, including the capacity t crdinate. The analysis will infrm develpment f a cherent Capacity Develpment Plan which is systematic, demand-driven and gvernment-led, and supprts implementatin f the plicy initiatives embedded in the Csted Sectr Plans. The Plan can als help articulate clear rles, respnsibilities and accuntability lines within and between Ministries fr mre efficient and effective decisin making. It will als utline the crdinatin structures and mechanisms which are essential fr streamlining cllabrative effrts and leveraging results amng the different agencies. Feasibility f implementatin Analytical wrk is already underway in Phase 2 f the CESR t assess the feasibility f scaling up and institutinalising pilt initiatives and lking at the institutinal and capacity develpment implicatins, as well as additinal funding required. Develpment f an apprpriate incentive system t reward agents f change will be key t success, as well as building administrative flexibility in managing resurces t address capacity gaps nce they have been identified. Cnclusin Implementatin f Myanmar s ambitius prgram f educatin sectr refrm will require increased resurces, bth dmestic and external; an enabling legislatin and plicy envirnment; as well as an extensive and systematic capacity develpment prgramme. With a crdinated apprach between all gvernment agencies and Develpment Partners, it is hped that these three cnstraints can be addressed, t create an educatin system that will generate a learning sciety capable f facing the challenges f the Knwledge Age and cntribute t the building f a peaceful, mdern and develped natin. 5