Public Private Partnership in Education: from Policy to Implementation by Kashif Abbas

11 Public Private Partnership in Education: from Policy to Implementation Value Addition and Best Practices

March 2008

Beala Jamil

City District Government Faisalabad, Pakistan

This document is produced as part of the Strengthening Decentralised Local Government in Faisalabad (SDLGF) Project for the purpose of disseminating lessons learnt from the project. The views are not necessarily those of DFID or the City District Government Faisalabad (c) SDLGF March 2008 Parts of this case study may be reproduced for educational use, provided that such material is not printed and sold. The authors expect that, any material which is used will be acknowledged accordingly. Printed by: FaizBakht Printers, The Mall, Jhang (Punjab) Pakistan.

VISION “Pre-empting Poverty, Promoting Prosperity”

MISSION STATEMENT “We will provide high quality services which compare with the best in the country. We will work with everyone who wants a better future for our District. We will establish an efficient, effective and accountable District Local Government, which is committed to respecting and upholding women, men and children’s basic human rights, responsive towards people’s needs, committed to poverty reduction and capable of meeting the challenges of the 21st Century. Our actions will be driven by the concerns of local people”

ACKNOWLEDGMENTS This case study is the culmination of efforts by a number of individuals from government and the technical assistance team. Firstly it is important to thank all those who have cooperated with the team preparing this case study not only in the last few weeks but over the course of the last four years. They have been critical to the work and demonstrated what is possible to achieve in government when the right set of conditions prevail. The author would also like to thank the communities and elected representatives of the district that assisted the SPU team in implementing this project and its various components. The author wishes to thank Rana Zahid Tauseef, City District Nazim; Maj (Retd.) Azam Suleman Khan, District Coordination Officer; and Dr. Tariq Sardar, EDO Finance & Planning for their valuable contribution in making this project a huge success. The author is also thankful to: Mr. Ch. Zahid Nazir, ex-District Nazim Faisalabad; Mr. Tahir Hussain, exDCO Faisalabad and Mr. Athar Hussain Khan Sial, ex-DCO Faisalabad for their valuable contribution to the success of this project. The author is further thankful to all CDGF employees (past and present) and CDGF partner departments but would like to specifically mention by name the following: Mr. Mumtaz Hussain Shah, EDO Education; Mr. Ch. Zulfiqar Ahmed District Officer Secondary Education, Mr. Ashiq Ali, District Officer Elementary Education (male), Ms. Kishwar Naheed Rana, District Officer Elementary Education (female) and the team in the PPI cell that includes Mr. Shabbir Ahmad Basra, Ms. Shamiala Farhat and Mr. Zulfiqar Ali, for their efforts in successfully implementing PPP policy in the district. The author is also thankful to all DFID Project Advisers and Management that have assisted in this project since its start and would like to specifically thank Mr. Mosharraf Zaidi, Governance Advisor, DFID Pakistan and Mr. Wajahat Anwar, Deputy Program Manager, Accountability and Empowerment team, DFID Pakistan, for their continuous support and professional technical guidance since their involvement in 2005. The author is also thankful to Mehreen Hosain for proof reading the document and all the SPU team members for their dedication, hard work and the many late hours spent designing, implementing and documenting the work of this project. These include: Khatib Alam, Nadir Ehsan, Mahmood Akhtar, Imran Yousafzai, Muhammad Shahid Alvi, Muhammad Tariq, Kashif Abbas, Ajaz Durrani, Farhan Yousaf, Muntazir Mehdi, Gul Hafeez Khokhar, Muhammad Mirza Ramzan, Muhammad Sharif, Sumara Khan, Humaira Khan, Saima Sharif, Mubarak Ali, Noor Muhammad Khan, Nuzhat Hanif, Syed Sheraz Akhtar, all the master trainers and training associates of the Institute of Learning and all long and short-term international and national consultants.

Public Private Partnership in Education: from Policy to Implementation

Table of Contents

TABLE OF CONTENTS ACKNOWLEDGMENTS ACRONYMS EXECUTIVE SUMMARY

1.0

BACKGROUND

1.1 1.1.1 1.1.2 1.1.3 1.1.4 1.1.5 1.1.6 1.2 1.2.1 1.2.2

General Context The Policy and Scope of PPPs Reaching out to EFA and the MDGs National Policy & Reforms & Public Private Partnerships Incentives to Partners : Non-state provision Pakistan Centre for Philanthropy (PCP) & 3Ps Provincial and District Initiatives in 3Ps 3Ps Options Specific Context Faisalabad Strategic Operational Plan (SOP) for Education Sector

2 2 2 3 3 3 4 5 5 5

2.0

THE CASE

2.1 2.1.1 2.2 2.2.1 2.3 2.3.1 2.3.2 2.3.3 2.3.4

Overview - Faisalabad City District Government & 3Ps in Education City District Faisalabad : Embedding Partnerships for Quality Education Design The Institutional Establishment of 3Ps Cell 2006:Dept of Education Implementation From Distrust to Belief in Partnerships: Creating a mind shift Mobilizing Partners: The Process Changing Schools through Partnerships - Creating Possibilities for Improved Service Delivery Impact - Case Studies - Stories of Hope

6 6 6 6 7 7 7 8 9

3.0

LESSONS AND REFLECTIONS

3.1 3.1.1 3.1.2 3.2

Sustaining Partnerships The Partnership Edge PDSSP Includes the Faisalabad 3Ps Cell as Model of Good practice PPP Cell for Education in Faisalabad City District

14 14 15 15

4.0

CONCLUSIONS

BIBLIOGRAPHY

City District Government Faisalabad Strategic Policy Unit

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Public Private Partnership in Education: from Policy to Implementaion

Acronyms

ACRONYMS AEO CRC DOE DDEO DEO DFID ECD EDO EE (F) EE (M) EFA EMIS GoP LC LGO LSQAs MOE NGO NRB PESRP PTA SC SDLGF SE SMC SPU SWAP UPE WSD

Assistant Education Officer Convention on the Right of the Child Department of Education Deputy District Education Officer District Education Officer Department for International Development Early Childhood Development Executive District Officer Elementary Education (Female) Elementary Education (Male) Education for All Education Management Information System Government of Pakistan Learning Coordinator Local Government Ordinance Learning Solution and Quality Assurance Ministry of Education Non Governmental Organisation National Reconstruction Bureau Punjab Education Sector Reform Programme Parents Teachers Association School Council Strengthening Decentralized Local Government in Faisalabad Secondary Education School Management Committee Strategic Policy Unit Sector Wide Approach Universal Primary Education Whole School Development

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Executive Summary

EXECUTIVE SUMMARY Public Private Partnerships (3Ps) are now a buzzword in the social sectors carrying many different meanings and embodying many types of services. Endorsed broadly by governments and development agencies alike for achieving EFA & the MDGs, they are becoming a critical lever for mobilizing resources, voluntarism, tapping CSR and contracting out services to technically appropriate groups for more efficient service delivery options. Partnerships range from the budget based variety to the revenue based and outright grant support. In the former, the payments are made by the government with limited performance risks (eg. PRSP,NRSP, NLC, Foundations), in the revenue based ones, collection of user charges and both performance and revenue risks are borne by the partner (school upgradation in afternoon shifts, tolls, roads construction etc.). In the grant support partnership (adopt a school) the partner takes on limited liability with outright grant support and performance risk. Since 2000, the policy on partnerships in education has become embedded at the national and provincial levels in sector reforms. The Faisalabad case also acknowledged by the provincial policy framework on partnerships in the social sectors, highlights that policy and institutional mechanisms for the operationalization of 3Ps is increasingly being transferred to the district level, enhanced by projects such as the â&#x20AC;&#x153;strengthening decentralized local governmentâ&#x20AC;?. Several key questions emerge on the sustainability of reforms and policies on partnerships at the district level which draw resources primarily from the provincial level. Will such governance reforms sustain beyond the project? Are partnerships a part of the district's development strategy? Will the government adhere to partnerships with consultation? On whose terms will partnerships in the social sector flourish and expand? City district Faisalabad is nevertheless the first district in the entire country to legitimize a 3Ps policy framework from its district council (Dec. 31, 2004) and to establish a 3Ps Cell in the Department of Education in 2006. This meant many changes: moving from distrust to trust, openness to new ways of doing things with others, social marketing and evidence based tracking. The District has partnered with over a 100 schools across two programs; 'Adopt a School' (AAS) and 'School Upgradation through Community Public Partnerships' (CPP). The AAS model is more home-grown with 52 schools and 21 partners in a grant support partnership. CPP, like the school improvement programs run by the rural support partners viz. NRSP, PRSP, NCHD, with over 1000 schools, is provincially driven with district based arrangements. Drawing from the experience of partnership in the AAS program there are different typologies of partnerships that are emerging: from volunteers, to expert types, to CSR in industrial clusters. Whilst it is a win-win programme, leading to improved enrolments, filling in of missing facilities, and making environments more conducive for learning, the challenge for quality can only be met if these partnerships are sustained as a new form of social contract between citizens and state in an inclusive framework. Partnerships in this sense must move towards a budget based modality, whereby the government provides for budgets for education as a public good for all children, whilst management and performance risks are shared by partners.

City District Government Faisalabad Strategic Policy Unit

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Public Private Partnership in Education: from Policy to Implementaion

1.0

BACKGROUND

1.1

General Context

1.1.1

The Policy and Scope of PPPs Reaching out to EFA and the MDGs

Background

Since the 1990s partnerships are globally seen as a popular strategy for meeting Education for All (EFA) targets and the Millennium Development Goals (MDGs). Partnerships entail sharing of resources (technical and financial) as well as responsibilities for quality service delivery, accountability and improved governance. This strongly resonates with trends in national and subnational policies in Pakistan. As a result of nationwide devolution in 2001, responsibility and authority have been formally devolved to the local governments. The latter are challenged to meet the targets of poverty reduction, and social policy objectives such as quality EFA, health for all etc, amidst resource and capacity constraints. In a wider context, the Government (both federal and provincial) has increasingly acknowledged the management and resource deficits, inhibiting service delivery and citizens' satisfaction. According to the latest national statistics (PSLM 2005), there is 86 percent gross enrolment at the primary level, 52 percent net primary enrolment, and 31.1 percent drop-out rate up to grade 5, with low transition opportunities to move from one level of education to the next. These figures are exacerbated further when disaggregated across gender, provinces and rural urban areas. The government has actively explored partnerships to meet poverty reduction, education, health, environment and gender targets. Sufficient evidence has been gathered regarding the valuable role and contributions of 'partners'. These include the private sector, philanthropists, communities and civil society organizations (AKDN 1998, FBS 2000, NEC 2005/6). The latter have actively supported the delivery of public goods through non-state provision and/or direct support to public sector facilities for improved social sector services. Pakistan's search for partnerships is increasingly state driven. Since the Jomtien moot on Education For All (1990) in Thailand, many initiatives have been led by the public sector. These include, establishment of, and programs run by the Education Foundations (Balochistan. Sindh. Punjab, NWFP& National), those initiated by the Ministry and Departments of Education and also those at the district level since 1998. They have all sought to mobilize value addition in education through partnerships. Critical questions have been raised regarding delivery of public goods by non-state partners through 'partnership' arrangements. These include: Partnerships on whose terms?; Partnerships for what?; Do partnerships represent the roll back of the state and public responsibility for a public good or do they bring genuine value added through comparative advantage? What is the evidence at local levels? 1.1.2

National Policy & Reforms & Public Private Partnerships In Pakistan the strategy of public-private partnerships (3Ps) in education predates the federal draft PPP Law 2006 developed mainly for infrastructure projects (PDSSP, 2008). The 3Ps strategy has been integrated into the Education Sector Reforms (ESR) Action Plan 2001-2005/06. 3Ps was also identified as a cross cutting thrust area to implement the National Education Policy 1998-2010 (NEP). The ESR Action Plan 2001-2005/6, was a sector wide plan (SWAP), covering early childhood to tertiary, vocational and literacy sub-sectors, underpinned by Quality and Public Private Partnerships. Each thrust area and strategy had time bound targets and ESR was integrated in Pakistan's Poverty Reduction Strategy Paper (PRSP-2003). Partnerships, thus conceived were to be mobilized through the restructured Education Foundations on the one hand, as well as through incentives approved by the Cabinet, such as lowest tariffs in utilities, tax exemptions, customs waivers etc. The Ministry of Education issued a policy booklet titled, â&#x20AC;&#x153;Public Private Partnerships in the Education Sector: Education Sector Reforms Action Plan 2001-2005: policy options, incentives

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Background

and recommendations” (2004), advocating partnerships for access and quality. In 2006 the Ministry of Education in collaboration with the Pakistan Centre for Philanthropy (PCP) finalized the national policy guidelines for 3Ps including sample memorandums of understanding (MoUs), endorsed by the policy forum of the 10th Interprovincial ministerial meeting (June 2006 Peshawar, www.moe.gov.pk) The Ministry of Education has adopted a broad definition of PPPs: “A public-private partnership is defined as any arrangement between a government and the private sector (inclusive of CSOs) in which partially or traditionally public activities are performed by the private sector.” (Savas, MOE 3Ps Booklet, 2004 p. 7). Broad umbrella definitions are considered to be more appropriate providing flexibility and scope for value addition through a variety of partnerships (PDSSP, 2008). 1.1.3

Incentives to Partners: Non-state provision Incentives to the education sector approved by the Cabinet were consolidated in the booklet. These were, land at concessional rates and zoning in rural and urban areas, utilities at lowest domestic tariffs, tax /duties waivers, concessional financing for private sector education institutions approved by the cabinet. (MoE, 2004 p. 11)

1.1.4

Pakistan Centre for Philanthropy (PCP) & 3Ps The Pakistan Centre for Philanthropy (PCP), established in 2001, has been actively engaged in the research, policy and practice agenda of 3Ps at the national and local levels. With a grant from the USAID project, Education Sector Reforms Assistance (ESRA), PCP mobilized corporate social responsibility (CSR) for education across districts in Sindh and Punjab. PCP conclusively influenced the national, provincial and district policies and guidelines for 3Ps (2006), mobilized the Prime Minister's Best Practice Award for Philanthropy as well as establishing linkages of 3Ps, and CSR with the Citizen Community Boards (CCBs). The latter were to create resource synergies for school improvement /education initiatives at local levels in compliance with the National Reconstruction Bureau's (NRB) guidelines.

1.1.5

Provincial and District Initiatives in 3Ps Whilst partnerships and multiple innovative projects had been tested in the '90s in all provinces, the formal modalities, legal instruments and tools have been refined for adaptive use at local levels extensively in the post 2000 period. The Punjab Education Sector Reforms Program (PESRP) has clearly supported partnerships through: the Punjab Education Foundation (PEF), the Directorate of Staff Development (DSD) and the Department of Education (DoE) for outsource training, access to school places through vouchers, school improvement programs and provision of missing facilities. The Punjab Education Foundation (PEF) has been charged with supporting non-state provision through 3Ps whilst the DoE has been promoting partnerships for meeting its mainstream targets by mobilizing the rural support programs (RSPs), National Commission for Human Development (NCHD) for missing facilities, school council/ community mobilization and training, as well as the National Logistics Cell (NLC) for school construction /missing facilities. These partners have been engaged through formal MOUs/Agreements and in all cases resources have been transferred to these parties from the government to produce results more efficiently and effectively. These partnerships, sometimes procured as single source services by the DoE, beg many questions of whether they all adhere to the criteria of 3Ps or not, as risk of low or no output is not shared by the rural support

City District Government Faisalabad Strategic Policy Unit

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Background

programs. The partnerships thus contracted cover a significant number of government schools in Punjab. Several districts in Pakistan have been proactive in mobilizing partnerships to meet management and resource deficits and transitional gaps from primary to secondary levels. More well known in Punjab are, City District Government Lahore with over 300 schools adopted, Rahim Yar Khan with effective models of 3Ps in health and education, City District Government Rawalpindi, Jhang, Shekhupura and most recently City District Government Faisalabad. City District Government Lahore has been mobilizing partnerships since 1998. 1.1.6

3Ps Options The options for 3Ps have proliferated and these include: 1. 2. 3. 4. 5.

School Improvement Programs through corporate and general philanthropy and also Rural Support Programs (PRSP & NRSP) and NCHD in government schools Accelerating access to education/UPE through feeder schools, Non-formal programs, teacher placement and training through NCHD and other NGOs School Voucher Programs, Community Support and Fellowship Schools, Financially Assisted Schools (FAS), support to Teacher Training in non-elite private schools through four out of five Education Foundations in Pakistan School Upgradation programme in government schools in afternoon shifts with multiple partners through the Community Public Partnerships (CPP). Missing facilities program being implemented through the National Logistics Cell (NLC) under a formal single source agreement in Punjab and in some case with NRSP and PRSP as Government Organized NGOs (GONGOs).

Spurred by national and provincial policy provision as well as devolved responsibility for managing schools at the district level, some district governments have taken bold initiatives to take 3Ps forward. City District Faisalabad provides one such case study in its pursuit for Strengthening Decentralised Local Government. 1.1.6.1 Two archetype PPP models: the budget-based & the revenue-based 3Ps The budget-based PPP model will generally be applied to make a public service available or to improve its quality. The service will be delivered by a private firm, whereby the government pays the private firm performance-related payments. As a consequence, the private sector will only bear the performance risks (i.e. the risks to deliver sub-standard services which results in lower payments by the government). The revenue-based PPP model will generally be aimed at improving the quality of service and/or the successful collection of user-fees. The private partner will be paid directly by the end-user. In essence, this implies that the private firm will carry both the performance risk and the revenue risk (i.e. the risk of not being able to collect the user-fees). (PDSSP, 2008, pp. 20-21) A third model can be derived appropriate to the current case study. This is of a service /management contract which does not involve transfer of government resources to the partner and where risk is only shared by the partner. All resources are mobilized by the partner primarily to improve the facility and service.

City District Government Faisalabad Strategic Policy Unit

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Public Private Partnership in Education: from Policy to Implementaion

1.2

Specific Context

1.2.1

Faisalabad

Background

The Strategic Policy Unit (SPU) was set up by the Faisalabad district government in 2002, as a policy think-tank. Its key aim was to act as a conduit in the district from which all development programmes could be initiated. In 2004, the United Kingdom's Department for International Development (DFID) agreed to provide technical assistance to the district using the SPU as the platform from which change would be driven. The SPU over a four year period has acted as a key resource fostering social capital within the city government and often being the focal point for local and international technical assistance and programme development. With a cohort of key technical resources and change management agenda it plays a key role in facilitating public sector reforms and is replicable. It has been instrumental in assisting Faisalabad become a modern administration. This case study with a particular focus on the education sector, attempts to capture the story of one City District Government viz. Faisalabad. The District is estimated to have 34 percent of its population living below the poverty line in 2003 against the national and provincial indicators of 32.1 percent and 39 percent respectively. In the post devolution period the District was selected to engage in a systemic strengthening program supported by the Department for International Development (DFID). A Corporate Plan 2004-2009 was consultatively drawn which clearly articulated the need for building partnerships guided by the principle of efficiency. We will work with local communities, the voluntary sector, the business community and other agencies to deliver the best for Faisalabad District, and secure a prosperous future for the District. (City District Govt. Faisalabad, 2004 pp.7) 1.2.2

Strategic Operational Plan (SOP) for Education Sector As part of the capacity building initiative, Strategic Operational Plans were developed for all key sectors, based on a consultative diagnostic process. The Education SOP for Faisalabad is multipronged. It is fully aligned to the provincial and national policies, and embedded in EFA goals and the MDGs. To meet the challenges of access, equity and quality, mobilizing partnerships was identified as an important lever. The Strategic Operational Plan (SOP) for education has a four pronged focus: l l l l

Enhancing its management capacity and strengthening its management systems; Training of teachers and head teachers towards improved educational quality; Encouraging community participation in the management of schools; The development of public-private partnerships in key areas

(Education Strategic Operational Plan 2004-2009 p. 10)

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2.0

THE CASE

2.1

Overview - Faisalabad City District Government & 3Ps in Education

2.1.1

City District Faisalabad : Embedding Partnerships for Quality Education

The Case

Faisalabad has about 1.4 m children of school-going age (4-14 years). The gross enrolment rates are about 75 percent in primary schools and 40 percent in middle and secondary schools. Completion rates are far lower for girls than boys. There are 2800 government schools and 13,500 teachers in the District. Partnerships were conceived in the education SOP as part of district strengthening to address access, equity and quality. 3Ps were to be mobilized so that they could act as a bridge to link with the Whole School Development (WSD) component for improving service delivery and learning levels of children in under-performing government schools. A key objective of the strategic operational plan for education was: “Developing public-private partnerships, involving joint-work of the public and private sectors and encouraging private sector support for government schools”. 2.2

Design

2.2.1

The Institutional Establishment of 3Ps Cell 2006: Department of Education In the true spirit of devolution the City District Government presented a draft Bill on a 3Ps policy framework to the District Council on December 31 2004 to gain legitimacy. This was approved on the same day. It comprises of seven sections covering amongst others institutional provision (article 4b), for operationalizing the policy, outcomes of policy, and principles of PPP. www.spu.com.pk: a)

b) c) d)

PPP means a collaboration of government, private sector companies, communities, NGOs and individuals in the funding management, operations to support 'education & literacy' needs of all citizens on i) government owned ii) community owned sites & iii) non-elite private sector sites. Public means all organizations lying in the domain of the government or public sector and under the ownership and control of government or its delegated governance mechanism. Private means organizations set up as private corporate sector (for profit) Private Voluntary Organizations (non-profit) or NGOs, Citizen Community Boards,School Councils, Individual Philanthropists, Partnerships means collaboration to improve public and/or private service facility (CDG Faisalabad p.2)

In August 2006 the 3Ps cell was finally established under the Executive District Officer (EDO) Education, and notified with five positions led by a Coordinator. All positions have been seconded from the DoE. These positions carry explicit job descriptions. This is the second attempt of the District to engage in partnerships. The first one in 2001 was a “top down scheme” in city colleges, which was not successful. With no due process, boards of governors were established with members drawn from the private sector, leading to wide protests by teachers and subsequent withdrawal of partners. The first attempt was premature, leading to distrust between partners and sometimes bitter negative perceptions. There was clearly a need for repositioning.

City District Government Faisalabad Strategic Policy Unit

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2.3

Implementation

2.3.1

From Distrust to Belief in Partnerships: Creating a mind shift

The Case

Each of the stakeholders had to confront the source of their distrust. There were many questions and concerns that were being negatively framed by the various partners. 2.3.1.1 The Department of Education How do we know that these schools will not be taken over by 'partners'? How do we know that they will not resort to shifting our teachers and putting out orders regarding their posts, and careers? “We had a bad experience in the early 2000s with respect to the formation of the Board of Governors in colleges where the new Board members became too haughty; we did not let the scheme succeed”. 2.3.1.2 The Partners How do we know that the Government means business this time? We did so much for these schools earlier but there is little ownership and care of our efforts by the Head Teachers and DoE? Who will solve our day to day problems in adopted schools? How will the principles of Agreement /MOU be respected and adhered to? 2.3.1.3 The School Heads What does this partnership mean for our status? Will they interfere in our work? Will we be shunted from school to school? How will this affect the security of our careers? It was these sorts of questions that the operational strategy had to respond to. It was also important to begin with these apprehensions and address them strategically in an upfront manner as the District could not afford poor mismanagement of a second opportunity. This time around it was important for the Department to have done its own homework and initiate work, prior to moblizing partners. 2.3.2

Mobilizing Partners: The Process

2.3.2.1 Screening & Profiling Schools in Need The first step was to identify schools in need, their locations and profiles so that the potential partners would also be identified in the same vicinity. In phase I the program would focus on industrial clusters and in clusters that were already identified for school improvement (for WSD) and work had already begun. These were in both rural and urban Union Councils. A total of 100 school profiles were developed (60 percent girls) by the 3Ps team with pictorials, to be partnered with those who cared. Head Teachers made pleas for assistance. (“ The condition of the building is very poor, five classrooms are dangerous and four need major repair. We are short on many things including furniture and teachers”. Government Boys High School 214 RB) 2.3.2.2 Social Marketing: A culture shift from exclusion to inclusion From the earlier position whereby the CDG and the Department would hardly interface with the public for collaboration to solve problems of schools, emerged distinct possibilities of speaking the language of partnerships with humility to generate technical/financial support. There was clearly a 180 degree change. The representatives of the Education Department working in the 3Ps cell were now ready to learn the finer points about 'social marketing' for a worthwhile cause. They wanted to City District Government Faisalabad Strategic Policy Unit

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The Case

learn the art of mobilization and were no longer afraid of or offended by 'refusals' or closed doors by many, before someone said 'yes'. They began to savour the victories of partnerships, when sealed though MOUs. They also learnt how to hear severe critiques against their Department's performance. After screening 50 schools and preparing their profiles for mobilizing partners they became convinced that the earlier exclusionary stance of not mobilizing and/or acknowledging partners who were ready to 'give', was not helpful at all. This stance had deprived innumerable children of quality education, a conducive learning environment, and indeed teachers who would be present to teach! The departmental team was now convinced that they needed to become inclusive, actively seeking partners through social marketing. 2.3.2.3 New Skills and Development of a Marketing Kit The 3Ps team learnt the skills and the art of collecting data on each school, analyzing it for internal inefficiencies and making convincing presentations to the target group/s, highlighting the plight of children in need of support to make a difference by transforming schools and the lives of children. A marketing kit was developed with printed materials, brochures, folders, leaflets, school profiles and presentations including flex banners with a stand. 2.3.3

Changing Schools through Partnerships - Creating Possibilities for Improved Service Delivery

2.3.3.1 How do we measure improvements? Impact Indicators, Quantitative & Qualitative Each school once partnered through a formal agreement for three to five years was subsequently supported by the team to prepare a school development plan (SDP) against the baselines recorded in the needs assessment proforma. Priorities for action were established jointly by the stakeholders. The School Development Officers (SDOs) at the 3Ps cell played a vital role in assisting the adopters and School Councils in preparation of SDPs to address both access and quality through evidence-based mechanisms. The SDP helps as a benchmark tool to track implementation and success indicators. Monthly monitoring formats were prepared to enable adopters to fill out progress and issues against the original baselines on enrolments, teachers, physical facilities etc. These would then become the basis for the monthly meetings at the 3Ps cell with Head Teachers, adopters and field education staff to share progress, capture stories of resistance and transformation as well as monetized value additions in the partnered schools. 2.3.3.2 Building Value Chains within the Project: Synergizing Support from Within for Whole School Development Institute of Learning (IOL) & the 3Ps Cell To implement the other three pillars of the SOP of the Education sector an Institute of Learning (IOL) was created with a particular focus to build capacity for and roll-out the WSD programme. The three three pillars are: l l l

Training of teachers and Head Teachers towards improved educational quality; Enhancing its management capacity and strengthening its management systems; Encouraging community participation in the management of schools.

From the outset the 3Ps strategy was embedded in WSD. WSD has developed a systematic process of working across schools to train Head Teachers, teachers and School Councils, and provide support to learning materials and infrastructure development. Since September 2007 a formal understanding was reached between IOL and the 3Ps cell to link all City District Government Faisalabad Strategic Policy Unit

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The Case

partnered schools with the WSD support program. The moment a MOU is signed with an adopter a referral request is formally sent to the IOL for providing quality support to the partnered schools. This has created options for reinforcing school improvement through two channels viz. the adopter and also the WSD program of IOL. 52 government schools have been linked to date to WSD and the community/partners have mobilized US $ 20,000 to date to link with the matching grant for missing facilities under WSD/IOL, supported through the project resources. 2.3.4

Impact - Case Studies - Stories of Hope

2.3.4.1 Unique Contexts and Typologies of Partnerships After adopting over 50 schools there are many case studies to share. Each school is a unique story, unfolding in a specific context in which various types of partnerships are prospering. There are distinct variations of the value addition dimensions and characteristics of partners. A typology of partnerships is beginning to emerge of: volunteerism at its best, mobilizing good will in production belts, and expert led sequenced whole school development approaches. 2.3.4.2 Service Above Self : Rotary Club Faisalabad - the Volunteer Spirit Type I MC Girls Primary School Madina Colony A story of Value Addition from 1 to 4 learning institutions! (Phase I) Date Adoption: Adopted by: Enrolment at Adoption: Teachers at adoption: Pupil Teacher Ratio PTR: Rooms at Adoption: Classroom-Pupil Ratio (CPR):

07-09-2007 Rotary Club Faisalabad 427 07 61:1 04 106+ :1

The School Context MC Girls School was established in 1974, under the Municipal Corporation of Faisalabad, belonging to the local government set-up even prior to devolution. Since devolution in 2001 the MC schools have gradually merged into the DoE, now eligible for similar inputs and interventions as the 'Government Schoolsâ&#x20AC;? with a specific EMIS Code or ID assigned. At the time of adoption the pupilteacher ratio was 1:61, the classroom pupil ratio was 106+ with all squeezed into 4 rooms. Inevitably many sat outside on the bare floor and mostly on the bare mud floor beyond the verandah. In the entire school there was absolutely no furniture not even for the teachers. There were some broken benches stacked up at the back of one of the classrooms. When enquired why they were not in use, it was revealed that these belong to the Government Girls Primary School No. 208, that shifted from rented premises earlier in 2007 and now operates in the same school in the afternoon with 100 girls and 5 teachers. So this was not one school after all. It was soon discovered that the adopted school has four learning units functioning in the same premises, viz. i) the school itself; ii) the shifted government school in the afternoon; iii) the City District Government Faisalabad Strategic Policy Unit

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Public Private Partnership in Education: from Policy to Implementaion

The Case

literacy centre of the Department of literacy & NFE and iv) the recently approved upgradation of the MC Girls Primary School to a middle level whose building was under construction already. Suddenly the MC Girls Primary school instead of being home to one entity became a multipurpose facility. No student or teacher could benefit from water, sanitation or toilets as they were either not available, or were nonfunctional. The boundary wall was in shambles. To accommodate two shifts both schools run on short day programmes of four hours each, thus compromising contact learning time. The amazing aspect of the school was that children and parents still flocked to it for education at all costs, not happy of course with the conditions, but as city dwellers in a fast expanding district, education is the only hope for their children . The Head Teacher a primary teacher with 11 years of education (Matric PTC) and plenty of experience was keen to find solutions or was at least responsive to options. She was also known to have mobilized resources for uniforms and books earlier from concerned citizens when these books were not freely available from PESRP. So Ms. Tahira Sultana was a reasonably good-hearted soul. Call for Partnerships : & response from the once Silent Partners the Rotary Club Faisalabad When the call for partners was given it was the good fortune of the DoE that many silent partners who had hitherto quietly helped neighbourhood schools in Faisalabad surfaced to respond to the challenge made public by the DoE and its 3Ps Cell. The Rotary Club Faisalabad was one such entity. The RC Faisalabad was established in 1953 with the motto of â&#x20AC;&#x153;Service Above Self â&#x20AC;&#x153;. It is a group of high caliber professionals (retired and serving) committed to the cause of doing good deeds with selfless dedication. Partnership with Two Primary Schools Rotary Club partnered with two primary schools, a girls and a boys school in a cluster in the heart of the city. All they were concerned about was to extend assistance to where it was most needed. Since the signing of the MoU on September 7, 2007 they have not spared a minute to make things happen in implementing the SDP. The RCF could not wait for walking the talk and were impatient to witness the faces of children transform from despair to hope. A ground breaking ceremony took place in middle of Ramzan (the month of fasting), and so began the journey of change and improvement. The caring nurturing attitude of the RCF is unmatched. The two Rotarians in charge of the school improvement project oversee progress on school construction on a daily basis working closely with the Head Teacher and teachers to make it into a model institution, changing the destiny of hundreds of deserving children through quality education.

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Public Private Partnership in Education: from Policy to Implementaion

The Case

The Multiple Levels of Support by the Rotary Club Faisalabad (RCF) A new building block of three additional rooms, office and toilets was begun by RCF with a view to completing this by December 2007 so that the new year would begin with new facilities. Furniture was procured as no children or teacher had any to sit on. Two teachers were hired to augment the teacher shortage ensuring qualifications and skills of a certain quality, aligned to the government criteria. A new School Council was formed according to the new policy with adopters as members too. Now the benefits of the morning shift not only accrue to the first shift that has expanded from 430 to 480 but also to the second shift of an additional 100 children learning in the same school. They have contributed over US $ 12,000 in four months. The Rotarians were convinced by the 3Ps cell team during the monthly review meetings to adopt the second shift school as well for natural synergies. They convinced their Board and an approval was granted recently. For them, each improvement is treasured and they cannot help but acknowledge the support from a changed DoE. Impact The school has witnessed an increase in enrolment from 427 to 470, teachers from four to six, classrooms from four to six plus a staff room, pupil teacher ratio from 61:1 to 52:1 and classroom pupil ratio from 1:106 to 1:78. A journey of hope has just begun! 2.3.4.3 Tapping Industry for Corporate Social Responsibility (CSR) : Improving Learning in Industrial Clusters - Adopters with Resources & Quick Action. Rasheed Textile Mills The owners of Rasheed Textile mills were very clear at the outset that the schools that they wanted to partner with were the ones that were right in front of their manufacturing unit. They wanted to reach out to the schools in communities from where their workers come or are likely to join in the years to come. The owner wanted to make things happen in a community from where good will was being sought. They decided to adopt two schools too , a girls and a boys primary school that lay just next to one another in Bhatta Colony (Brick Kiln Colony! ), once a rural suburb of Faisalabad but now lying adjacent to the motorway and part of the city. This possibility of adoption in front of production units had already been anticipated by the 3Ps cell team, when they had profiled the two schools as part of their targeted strategy for soliciting partnerships for schools lying in industrial clusters. Corporate Social Philanthropy (CSR) is now part of the corporate code of conduct in Pakistan to ensure improvement of conditions for employees of the production unit but also the neighbouring community.

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Public Private Partnership in Education: from Policy to Implementaion

The Case

Rasheed textiles had already earmarked Rs. 3.5 million for this support program. They have already spent that amount or US$ 60,000 on the two schools and have plans for more support until the two schools become model institutions. Rasheed Textiles adopted the schools in July 2007 but work properly began in October 2007. The adopter does not have personal time but has the resources to invest and ensure that difference can be witnessed and demonstrated across from his factory's window. A manager has been assigned and the 3Ps team helps with many aspects of the processes including participation in the School Council meetings to ensure the community's involvement and ability to solve problems and take actions with consensus. Pre and Post Indicators of Girls and Boys Primary School Bhatta Colony The Head Teacher of the girl's schools is extremely thrilled with the support and is equipped through intensive trainings to make her school an exemplary one. However, in the boy's school the Head Teacher is not comfortable with day to day supervision of the adopter/3Ps cell. He still wants to do things 'his way' with little concern for the students. But the clock is ticking against him if he wants to persist with his old uncaring attitude. He has no choice but to transform. At each monthly meeting even if the adopter cannot attend, the Head Teachers do to share progress and issues and the Head Teachers who show resistance to change are clearly identified in this meeting. They witness peer pressure from colleagues to respond to improvements by adopters positively and accept the new realities of partnerships which indeed have made schools better and children happier! 2.3.4.4 The Expert Adopter: the case of partnership with NGOs who work with School Improvement Programs Approaching Whole School Improvement through a Systematic 4 Phased Process- Idara-eTaleem-o-Aagahi (ITA) The third typology is of an adopter who is technically competent, and known for pioneering work in whole school improvement. A civil society organization called Idara-e-Taleem-o-Aagahi (ITA) with a reputation in the province for school improvement and policy influence, decided to adopt six schools in an urban cluster. The agreement was signed in September 2007 and dedicated staff was hired for overseeing and implementing the program. ITA works with a four phased school improvement program comprising identification & partnership, mobilization of stakeholders and preparation of SDPs, school improvement, and the exit phase. This partner is not focused on brick and mortar as the first priority but changing attitudes of school stakeholders, the teachers, community and children themselves. Each step is meticulously documented and no implementation begins until the community is mobilized, the School Council is activated and the SDP has been approved. A dedicated cluster coordinator is hired who is trained in all the steps and the inputs entail the following: l l l l l l l l l l

Hopes and fears session with Head Teacher/teachers Aspirations of children for an improved school, what do they want to see in their school General body meeting and formation of the School Council according to the new policy Preparation of the School Development Plan (SDP) Implementation of School improvement which could mean : Mobilizing of head teachers, professional challenges and conflict management skills Hiring teachers for staff shortage or hiring support staff Helping Head Teachers utilize their school funds through School Council approval Reorganizing the time table and curriculum division for effective coverage of courses Undertaking learning levels baselines and regular tests in each school to identify challenges for quality improvement

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Public Private Partnership in Education: from Policy to Implementaion

l l l l

The Case

Making lesson plans for improving teachers' competencies and site based support Training of teachers on site and in clusters in subject based teaching Mobilizing funds for school improvement and creating capacity for utilization Project based learning through school enrichment programs including summer schools, IT clubs, health clubs etc. Working with School Councils and children on citizenship skills, conflict resolution and human rights Designing exit strategies with partner school and with the District Education Department.

In this case the approach of mobilization of resources is an active three way process: i) from the organization itself or through philanthropists/CSR; ii) from the DoE through linkages with existing schemes & programs; and iii) From the local community/School Council. Overall Progress and Impact In each school enrolments have begun to increase in the two months since interventions began. An overall increase of 7 percent has been recorded. Three teachers have been hired in schools where they were needed. Learning level baselines up to grade eight have been gathered so that each school knows its learning challenges and the partners can jointly work to improve these. ICT support has been provided to two schools and one school has already been partnered for a School to School lInk program with Holland with OXFAM NOVIB support. Furniture and computers have been provided to one school where a resource centre is being established. Matching resources have been mobilized for all schools for the infrastructural grant facilitated through the CDG Faisalabad government under DFID support. ITA has allocated Rs. 1.5 million to six schools in year 1 with two trained personnel who look after the program and a vehicle to provide timely on-site support. In spite of the early success stories and improvements all categories of adopters are conscious of the types of challenges that confront them.

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Public Private Partnership in Education: from Policy to Implementaion

3.0

LESSONS AND REFLECTIONS

3.1

Sustaining Partnerships

Lessons and Reflections

In the case studies above each school has witnessed improvement in access and to some extent quality as well. To that extent this is a win- win program. Each typology so far depicts: l l l l l

Value for money: by improving quality of education Risk transfer and partnership: significant risk is assigned to the private party Formal agreements: are adhered to through Memorandums of Understanding Private investment is at risk: the schools are invested in through private money Independence of government influence: negotiated influence by adopters with the government Support to equity and access: The goal is to provide quality education to the poor (PDSSP,ibid. p.53)

However many institutional concerns remain for ensuring momentum and energy and the sustainability of the program: l

l l

3.1.1

The last six months has suddenly seen major activity in the 3Ps cell with officers who have now learnt the art of partnerships. Will this momentum continue with the solicitation of partnerships and a deepening of professionalization in this new arena? Once the DFID supported project is completed in March 2008, will the 3Ps cell continue with the same enthusiasm even though all its members are departmental staff? Will the adopters push them for action keeping them on track? Will there be continuity in guidance and training for building capacity for partnerships and engaging with stakeholders? Without government support the scalability of this model is challenged Will the 3Ps cell have the flexibility to amend its work over time to respond to emerging needs? Will the synergies between 3Ps Cell and IOL's WSD continue for quality improvement in partnered schools? The Head Teachers rarely delegate work , authority and responsibility and so leadership is not distributed across the schools Staff absenteeism is institutionalized and teachers continue to go on casual leaves on a daily basis making staff shortages a recurrent reality A culture of inertia and distrust is pervasive in public sector institutions and will take time to change in schools where supervision has not been active.

The Partnership Edge Partnerships through PPPs according to a recent policy study under the Punjab Devolved Services Support Program (PDSSP), suggests that these are able to: l

Increase supply of services: by augmenting implementation capacity in national and local governments. Experience has shown that introducing PPPs in these areas helps in the growth of public service provision; Increase efficiency: through better risk allocation, whole life costing and stronger incentives to perform, PPPs can contribute to increasing cost effectiveness of public service delivery; Increase quality of service: they contribute to increasing the quality of service. This may reflect the better integration of services with supporting assets, improved economies of scale and scope, and introduction of innovation in service delivery;

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Public Private Partnership in Education: from Policy to Implementaion

Lessons and Reflections

Increase speed of implementation: due to the fact that a number of process steps in developing and procuring projects are eliminated and due to the project development process being placed partially outside the bureaucratic process. (PDSSP 2008 pp.17-18).

3.1.2

PDSSP Includes the Faisalabad 3Ps Cell as Model of Good Practice Under the same initiative of the PDSSP whereby a provincial framework for 3Ps pollcy is being developed for social sectors, the Faisalabad case on institutionalizing partnerships in education was formally shared. The PDSSP policy document has incorporated the 3Ps Cell story to leverage the district model to provincial mainstream initiatives

3.2

PPP Cell for Education in Faisalabad City District The Faisalabad city district has already passed a district policy framework on PPPs in 2004. The District was the first one in Pakistan to have such a policy framework approved by the District Assembly. The District has been actively looking into possibilities for PPPs, particularly in the field of education ever since. To step up efforts towards increased use of PPPs, a PPP cell was created within the District's Department of Education supported by four trained personnel coopted from the Department itself. The tasks of the PPP cell include: 1. 2. 3. 4.

Identifying potentially under performing schools, their screening, profiling and finding adopters. Undertaking social marketing visits to prospective adopters and joint school visits to potential schools. Managing partnerships, school improvement, linking target schools to various government initiatives, monitoring progress, resolving issues. Undertaking research and documentation to assess impact of partnerships.

To date 100 schools in need have been profiled for partnership and 50 have been officially partnered with through a formal Agreement for three years. The partners belong to two categories, viz. corporate sector or local industry and NGOs. (www.spu.com.pk) . The development and implementation of the District policy for PPP, including the creation of a PPP cell has been part of the DFID sponsored program to strengthen decentralized Local Government. Source PDSSP : 2008 p. 35

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Public Private Partnership in Education: from Policy to Implementaion

Conclusions

CONCLUSIONS The 3Ps cell in Faisalabad is already performing multiple roles: as a: Policy adviser and Knowledge manager, for each partnership scheme, and as a project Facilitator; and sometimes as a funding intermediary; as a PPP initiator, by proactively identifying opportunities for PPPs in the delivery of public services; as Contract manager during the implementation of PPP projects; and as Advocate, Compliance officer and sometimes a Decision maker, to the extent that authority is delegated to the 3Ps cell (Ibid, p. 18.19) The 3Ps Cell team has developed a toolkit for school improvement through partnerships with all steps and tools available for replication from policy, institutional arrangements to MOUs, school improvement steps and monitoring for impact. The public sector functionaries under the EDO Education have widely distributed the 3Ps package to national, provincial and district levels so that those who wish to replicate can do so without reinventing the wheel, to dispel negative myths about partnerships for all stakeholders and to break the silence about partners and partnerships traditionally perceived as adversaries. Collaboration for access to quality public services and public goods like education, health, clean water, and protection for all is now a recurrent reality. Collaboration needs to explore different types of possibilities across budget, revenue based and simple contracts for services that share resources and risks evenly. Formal partnerships for human development present a new social contract between 21st century citizens and the state, and perhaps, the only sustainable contract for poverty reduction and well being!

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Public Private Partnership in Education: from Policy to Implementaion

Bibliography

BIBLIOGRAPHY Aga Khan Development Network (AKDN) 1998 'Dimensions of Individual Giving' and 'Survey of Corporate Philanthropy'. District Government Faisalabad/SPU (2004) : Corporate Plan 2004-2009 District Government Faisalabad/SPU (2004) : Strategic Operational Plan Education 2004-2009 Federal Bureau of Statistics (2000) Government of Pakistan Islamabad.

(2003) Pakistan's Poverty Reduction Strategy Paper. Ministry of Finance,

Govt. of Punjab, Planning & Development Board (2008):; Rebel Group (2008) Public-Private Partnerships in the Punjab Devolved Social Services Delivery “From institutional innovation to PPP” Ministry of Education, (2002) Education Sector Reforms (ESR) Action Plan 2001-2005/06. Islamabad Ministry of Education, (2004) “Public Private Partnerships in the Education Sector: Education Sector Reforms Action Plan 2001-2005: policy options, incentives and recommendations”. Islamabad Ministry of Education, National Education Census (2005), in collaboration with the Federal Bureau of Statistics. Islamabad Pakistan Centre for Philanthropy (2007) Concept of Corporate CCBs District Government Partnership Pakistan Centre for Philanthropy (2005) Corporate Philanthropy in Pakistan: the case of public listed companies An Exploratory Study on the Nature and Dimensions of Corporate Giving in Pakistan.

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OUR OTHER PUBLICATIONS 2

Managing Change

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for Improving Service Delivery

for Good Governance

Learning to embrace the challenge of good governance

Building local government capacity for effective service delivery

S.M. Khatib Alam Karin Tang Mahmood Akhtar

March 2008

S. M. Khatib Alam David Alan Watson Muhammad Shahid Alvi

March 2008

SelfActualization Esteem (self and others) Social Needs Safety and Security

Basic Physiological Needs

City District Government Faisalabad, Pakistan

3 Financial Management

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& Service Mapping

From Deficit to Surplus

For Pro-poor Planning & Investment

S.M. Khatib Alam Imran Yousafzai

S.M. Khatib Alam Janet Gardener Muhammad Tariq

March 2008

Communications for Good Governance Building local government capacity for effective service delivery S.M. Khatib Alam Nadir Ehsan Humaira Khan

March 2008

150

100

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FY 2005-06

FY 2006-07

FY 2007-08 Projected

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City District Government Faisalabad, Pakistan

Citizen Voice in Local Governance

Citizen Engagement

Promising Change

Measuring Change

The Citizen Perception Survey

in Local Governance

Six Case Studies on Whole School Development

the education research component

S.M. Khatib Alam Sumara Khan Mehreen Hosain

S.M. Khatib Alam Muhammad Tariq Mehreen Hosain

March 2008

Dr. Fareeha Zafar

March 2008

Dr. Fareeha Zafar

TS ES ER INT ER ITY ETH UN OG MM ING T R E O T TH GC AC OGE TIN GT OR IDIN PP ION DEC SU LTAT U S CON

M INFOR

G SHARIN ATION City District Government Faisalabad, Pakistan

City District Government Faisalabad, Pakistan

Teacher Training

Public Private Partnership

Management Information Systems

Enabling Joined-Up Government

in Whole School Development

in Education: from Policy to Implementation

in Local Government

Introducing Geographic Information System

Change and Transformation as a Reflective Process

Value Addition and Best Practices

Changing the dynamics of governance through ICTs

March 2008

Brigid Smith

City District Government Faisalabad, Pakistan

March 2008

Beala Jamil

City District Government Faisalabad, Pakistan

March 2008

S.M. Khatib Alam Nadir Ehsan Kashif Abbas

City District Government Faisalabad, Pakistan

March 2008

Dr. Umar Saif Muntazir Mehdi Gul Hafeez Khokhar

City District Government Faisalabad, Pakistan

All case studies including other reports can be downloaded from the web site: http://www.faisalabad.gov.pk

ABOUT THE AUTHOR Baela Jamil - Education Consultant Baela Raza Jamil is a public policy, institutional strengthening and change specialist working across the education sector and other areas of social policy. Whilst her specialisation is in public policy she has worked extensively as a pioneer in areas of Public Private Partnership since the early 90s, ( both theory and practice), whole school improvement, education financing, local governance, teacher education, ECE , child labor, innovative practices in education etc to name some areas of her active interest. She has worked as an Education Consultant on the SDLGF project since 2004.

City District Government Faisalabad DCO Office, Near Iqbal Stadium Faisalabad, Pakistan Tel: +92 (0) 41 9200205 Fax: +92 (0) 41 9200206 E-mail: email@faisalabad.gov.pk Internet: http://www.faisalabad.gov.pk

Strategic Policy Unit 2nd Floor, DCO Office Near Iqbal Stadium, Faisalabad Pakistan Tel: +92 (0) 41 9201256 Fax: +92 (0) 41 9201257 E-mail: email@spu.com.pk Internet: http://www.spu.com.pk

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