Information for Education Policy, Planning, Management, and Accountability in Ghana:

Transcription

1 EdData II Information for Education Policy, Planning, Management, and Accountability in Ghana: Report of Findings of the Data Capacity Assessment of Ghana s Education Sector, June 2011 EdData II Technical and Managerial Assistance, Task Number 11 Contract Number EHC-E Strategic Objective 3 19 September 2011 This publication was produced for review by the United States Agency for International Development. It was prepared by a team of RTI International staff and consultants.

2 Information for Education Policy, Planning, Management, and Accountability in Ghana: Report of Findings of the Data Capacity Assessment of Ghana s Education Sector, June 2011 Prepared for United States Agency for International Development Prepared by Jennifer E. Spratt, Christopher Cummiskey, and Amy Mulcahy-Dunn, RTI International; and Helen Perry, Consultant RTI International 3040 Cornwallis Road Post Office Box Research Triangle Park, NC RTI International is a trade name of Research Triangle Institute. The authors views expressed in this publication do not necessarily reflect the views of the United States Agency for International Development or the United States Government.

3 Table of Contents List of Tables... vi List of Figures... vi Acknowledgments... vii Abbreviations... viii Executive Summary Purpose and Objectives of the Assessment Approach and Methods Employed Data collection and fieldwork Document review Interviews with principal users of education sector data and information Interviews with managers of data and information systems Guiding questions Analysis process Limitations Ghana s Medium-Term Planning Context Overview of Ghana s current education goals and objectives Education management structure and the policy-planning-management-review cycle Management structures New standard-setting and advisory agencies The medium-term planning process Commitment to information-based performance management USAID s education strategy directions Findings on Data and Information Needs and Uses Information for strategic functions: Needs, sources and challenges Ghana's framing of strategic information for the education sector Use of information in national medium-term and annual planning Resource allocations, funding formulas, and deprived districts System performance management and evaluation Information for operational functions District management of national-level requests for data and information Decentralized planning and budgeting Information for Education Policy Planning, iii

4 4.2.3 Financial management Teacher deployment, management, and capacity development Teaching and learning curriculum and materials School management Information for accountability Accountability and system management Accountability to the broader public Overview of Key Existing Information Systems for Basic and Secondary Education Education Management Information System (EMIS) Student learning assessment and examinations data systems GES Budget and financial management information systems Customized ActiveX database for budget development Managing data on expenditures and for resource distribution Government Integrated Financial Management Information System (GIFMIS) GES human resources information management Integrated Personnel and Payroll Database (IPPD) HRMD paper-based systems Other Education sector approaches to managing strategic and operational information Basic Education Division Curriculum Reform and Development and Supplies and Logistics Divisions Secondary Education Division District and Regional Education Office efforts Ghana Statistical Service (GSS) census and survey information systems Population and Housing Census Household and labor surveys Conclusions and Recommendations General conclusions How well do Ghana's data systems support and inform the development and implementation of education sector policies, plans, and strategies? For strategic functions (development of policies, plans, and strategies) For operational functions (implementation) Special focus on EMIS How well do Ghana's data and information systems provide a basis for coordinating and aligning external assistance and development partners activities in support of education? iv Information for Education Policy, Planning,

5 6.4 How well do Ghana's data and information systems and capacities support and inform the development and implementation of USAID s five-year strategy? How well do Ghana's data and information systems produce data to report on progress in the education sector, including evaluating and reporting on the outcomes and impacts of USAID assistance? Sector-wide performance and performance standards Evaluation of classroom process Evaluation of student learning Evaluation of community engagement and accountability Summary of recommendations of the Data Capacity Assessment ATTACHMENTS Attachment 1: Terms of Reference (Scope of Work: Education Data Capacity Assessment Pilot Country Effort, Ghana, 01 April 31 July 2011) Attachment 2: Documents Consulted Attachment 3: Persons Contacted Attachment 4: List of Questions and Discussion Topics (Ghana Data Capacity Assessment: General Study Questions to Be Pursued Through Document Review, Interviews, and Data Set Review) Attachment 5: Sample Policy Cost Matrix Attachment 6: Sample ADEOP Forms District Expenditure Forms for Zonal Meeting Attachment 7: Sample MTEF Forms Attachment 8: Sample Completed MTEF for One District Attachment 9: Sample of Capitation Grant Expenditure Information Provided by Schools Attachment 10: Sample Monthly Expenditure Report for One Region Attachment 11: Sample School Report Card Attachment 12: Sample EMIS School Report Attachment 13: Sample DEO-Developed Form for Collecting School Data Information for Education Policy Planning, v

6 List of Tables Table 1. Ghana s Education Sector Plan: Policy objectives by thematic areas... 7 Table 2. Annual planning, budgeting, and monitoring cycle of activities (2010)... 9 Table 3. Education objectives and indicators...17 Table 4. Cost of meeting Aide Memoire and AESOP priorities, Table 5. Summary of study findings and analysis of the EMIS...49 Table 6. Table 7. Table 8. Table 9. Summary of study findings and analysis of the National Educational Assessment (NEA) system...54 Summary of study findings and analysis of the West African Examinations Council (WAEC) data system...57 Summary of study findings and analysis of the ActiveX data system as used by GES for the Ministry of Education...59 Summary of study findings and analysis of the GES Integrated Personnel and Payroll Database (IPPD)...63 Table 10. Summary of study findings on Ghana s National Population Census...70 Table 11. Summary of study findings on key household surveys conducted in Ghana (GLSS, GDHS, and MICS)...72 Table 12. Summary of recommendations of the Data Capacity Assessment...90 List of Figures Figure 1. Diagram of the framework for data capacity assessment... 2 Figure 2. Capitation grant enrollment figures from Greater Accra schools...35 vi Information for Education Policy, Planning,

7 Acknowledgments This work was funded by the United States Agency for International Development (USAID) through the Education Data for Decision Making (EdData II) project, Task Order 11. The study was conducted and the report prepared by Jennifer Spratt, EdData II Technical Advisor, RTI International; Helen Perry, Consultant; Chris Cummiskey, EdData II Staff, RTI; and Amy Mulcahy-Dunn, EdData II Director, RTI. Any errors and omissions, which are inevitable in a paper of this type, are the responsibility of the authors. The assistance of the USAID/Ghana education team of Bob Davidson, Meredith Fox, Emmanuel Mensah-Ackman, Luis Tolley, and Marisol Perez is gratefully acknowledged. The thoughtfulness and patience of all Ghanaian and development partner key informants with whom we met are also much appreciated. Special thanks go to Emilia Aning, Director of the Ministry of Education s Planning, Budgeting, Monitoring and Evaluation unit (MOE/PBME), for hosting our team; the UK Department for International Development (DFID) education team led by Rachel Hinton, which hosted a small joint meeting of development partners; Kwame Agyapong Apiadu Agyen (MOE/PBME Development Partner Coordinator), who provided immeasurable assistance in lining up key interviews with busy people, in addition to sharing his own knowledge and experience of the Education Sector Performance Review process; Godwin Addo, Ghana Education Service/National Examinations Coordinator; and Ernest Otoo, MOE/PBME, who accompanied us on visits to District Education Offices and schools. Information for Education Policy Planning, vii

8 Abbreviations ADEA ADEOP ADPR ADSR AESOP AF AG AREOP ARPR ARSR ASU AUDEM BECAS BECE BED BoG CAGD CBO CCT COTVET CRDD CREATE CSA CWIQ DACF DDG-AQ DEO DEOC DFID DG DMCS DP DWAP ED EdData II EDI EFA EMIS Association for Development of Education in Africa Annual District Education Operational Plan Annual District Performance Report Annual District Sector Review Annual Education Sector Operational Plan Administration and Finance Accountant General Annual Regional Education Operational Plan Annual Regional Performance Report Annual Regional Sector Review Assessment Services Unit Advisory Unit on Decentralized Education Management Basic Education Comprehensive Assessment System Basic Education Certificate Examination Basic Education Division Board of Governors Controller and Accountant General Department community-based organization conditional cash transfer Council for TVET Curriculum Research and Development Division Consortium for Research on Educational Access, Transitions & Equity civil service agency Core Welfare Indicators Questionnaire District Assembly Common Fund Deputy Director General for Access and Quality District Education Office District Education Oversight Committee Department for International Development, UK Director General Data Management and Communication Strengthening Development Partner District-Wide Assistance Project Examinations Division Education Data for Decision Making project EFA Development Index Education for All education management information system viii Information for Education Policy, Planning,

9 ERP ERRC ESAR ESP ESPR fcube FM FTI GAR GDA GDHS GDP GEA GEDP GER GES GET-Fund GIFMIS GIS GLSS GNAT GNI GoG GPC GPI GPRS GRATIS GSFP GSGDA GSS HDI HE HEI HIPC HIV/AIDS HND HQ HRMD HRPT ICT ID Economic Reform Program Education Reform Review Committee Education Sector Annual Review Education Strategic Plan Education Sector Performance Report free Compulsory Universal Basic Education Financial Management Fast Track Initiative gross admission rate Global Development Alliance Ghana Demographic and Health Survey gross domestic product Ghana Education Act Ghana Education Decentralization Project gross enrollment ratio Ghana Education Service Ghana Education Trust Fund Government Integrated Financial Management Information System geographical information system Ghana Living Standards Survey Ghana National Association of Teachers gross national income Government of Ghana Ghana Population Census Gender Parity Index Growth and Poverty Reduction Strategy Ghana Regional Appropriate Technology Industrial Service Ghana School Feeding Program Ghana Shared Growth and Development Agenda Ghana Statistical Service Human Development Index higher education Higher Education Institute heavily indebted poor country human immunodeficiency virus and acquired immune deficiency syndrome Higher National Diploma headquarters human resources management and development Hard to Reach and Post Terrain information and communication technology identification; also Inspectorate Division Information for Education Policy Planning, ix

10 IMF IPA IPPD IQR ISE JHS JICA KG KNUST LAN LEAP LES MDA MDBS MDG MDRI MEO MESW MICS MLGRD MMDAs MOE MOESS MOFEP MoLG MP MTEF NAB NADA NALAP NAR NCCA NCTE NDC NDPC NEA NER NESAR NFE NGO NIB International Monetary Fund Innovations for Poverty Action Integrated Personnel and Payroll Database inter-quartile range Inclusive and Special Education junior high school Japan International Cooperation Agency kindergarten Kwame Nkrumah University of Science and Technology Local area network Livelihood Empowerment Against Poverty less-endowed school Ministry Departments and Agencies multidonor budget support Millennium Development Goal Multilateral Debt Relief Initiative Municipal Education Office Ministry of Employment and Social Welfare Multiple Indicator Cluster Survey Ministry of Local Government and Rural Development Metropolitan, Municipal and District Assemblies Ministry of Education Ministry of Education, Science, and Sport Ministry of Finance and Economic Planning Ministry of Local Government Member of Parliament Medium-Term Expenditure Framework National Accreditation Board National Data Archive National Literacy Acceleration Programme net admission rate National Council for Curriculum and Assessment National Council for Tertiary Education National Democratic Congress National Development Planning Commission National Education Assessment net enrollment ratio National Education Sector Annual Review Non-Formal Education nongovernmental organization National Inspectorate Board x Information for Education Policy, Planning,

11 NTC NYEP OECD PA PBME PCE PE PER PESPR PMT PPS PRS PTE PTLMR PTR PTTR RECOUP REDATAM + SP REO SEA SED SHEP SHS SMC SPAM SPIP SQL SRC SRIMPR SSA SSSCE SWOT TCAI TED TIMSS TVED TVET UBC UBE UCC UIS National Teaching Council National Youth Employment Program Organisation for Economic Co-operation and Development Parent s association Planning, Budgeting, Monitoring, and Evaluation (unit) per child recurrent expenditure personnel emolument Public Expenditure Review Preliminary Education Sector Performance Report Performance Monitoring Test Pilot Programmatic Scheme Poverty Reduction Strategies per teacher recurrent expenditure pupil to Teaching and Learning Materials Ratio pupil-teacher ratio pupil-to-trained-teacher ratio Research Consortium on Educational Outcome and Poverty REtrieval of DATa for Small Areas by Microcomputer Regional Education Office School Educational Assessment Secondary Education Division School Health Education Programme senior high school School Management Committee School Performance Assessment Meeting School Performance Improvement Plan Structured Query Language School Report Card Statistics, Research, Information Management, and Public Relations (unit) sub-saharan Africa Senior Secondary School Certificate Examination strengths, weaknesses, opportunities, threats Teacher Community Assistant Initiative Teacher Education Division Trends in International Mathematics and Science Study Technical and Vocational Education Division technical and vocational education and training Universal Basic Completion Universal Basic Education University of Cape Coast UNESCO Institute for Statistics Information for Education Policy Planning, xi

12 UNDP UNESCO UNFPA UNICEF UPC USAID WAEC WASSCE WB WUSC United Nations Development Programme United Nations Education, Scientific and Cultural Organization United Nations Population Fund United Nations Children s Fund Universal Primary Completion United States Agency for International Development West African Examinations Council West African Senior School Certificate Examination World Bank World University Service of Canada xii Information for Education Policy, Planning,

13 Executive Summary This report presents the findings of a data capacity assessment funded under the United States Agency for International Development s (USAID s) Education Data for Decision Making project (EdData II). The Ghana assessment, joining parallel pilot studies carried out by EdData II teams in the Philippines and Mozambique, contributes to a larger effort to develop and stabilize a useful framework and methodology for future data capacity assessments in other countries. Given USAID s focus on basic education support going forward, the Ghana assessment placed special emphasis on basic education (i.e., kindergarten, primary school, and junior high school). Overview of study purpose, objectives, and methodology The purpose of the assessment was to evaluate the data needs of Ghana s education sector, and the capacity of existing data systems to produce the information necessary to develop education sector policy and plans, implement them, and evaluate their progress. An additional objective was to examine the extent to which data systems in Ghana can be used to monitor, evaluate and report on the performance and impact of USAID interventions in the education sector. An international team of four people carried out the study, using a combination of literature review, interviews with both users and producers of information, review of system documents and reports, and structured analysis of the material thus gathered. Specifically, the assessment team investigated, drew conclusions, and posed recommendations relating to: the strategic, operational, and accountability functions of the education sector, and how well existing data systems that supply information on basic and secondary education support these functions; strengths and weaknesses of existing data systems, including whether and how education actors and stakeholders actually make use of these systems and the information they contain; and areas for improvement in data and information coverage, accessibility, efficiency, and utilization. Principal study findings Strategic uses of data. The team found that well-documented, information-rich sector analysis supported the policy decisions of the 2008 Education Act and the elaboration of the ESP The annual review process is also efficient and evidence-based, focusing on a selected core set of key indicators. Annual and medium-term planning and budgeting at the national level rely heavily on data from the EMIS, joined by expenditures projections, current resource allocations, prioritized policy goals, and centrally derived budget ceilings driven by resource allocation formulae. Considerable Information for Education Policy, Planning, ES-1

14 and extensive effort is spent each year to collect, organize, and review information about the education system, culminating in the Education Sector Performance Report (ESPR) and the National Education Sector Annual Review (NESAR). Development partners collaborate closely and effectively with government on the review process. Weaknesses noted in the process included: limited analysis of disparities among districts, even though this topic is high priority for Ghana; limited analysis of relationships among access, quality, and cost; reliance on sometimes dated secondary sources, even when more current data were available for primary analysis; lack of cost-effectiveness analysis or tracking of funding and actual expenditures at the central level, including household and other non-government contributions; limited number of high-quality research studies carefully planned, commissioned, and overseen by the MOE; and absence of an efficient system for gathering, compiling, and tracking activities and contributions of development partners at local as well as national levels. Operational uses. Key data and information systems used for education sector operations and policy implementation include human resource management and financial management systems, the EMIS database, and a number of ad hoc systems. District and regional operational planning and budgeting are able to build on performance and expenditures data and information from previous years, following a process that parallels national-level planning, with annual reviews, projections, and budget preparation. An ActiveX-based system is the repository for resulting budgets, and serves as a basis for the following year s budget exercise. Data challenges found in the operations area included: General lack of confidence in the accuracy and timeliness of data in the EMIS school census and database for operational management purposes; Absence of a nationally standardized system for quickly producing robust beginningof-the-year enrollment and teacher numbers, despite clear demand for rapidly available, current data from a variety of users; Overlapping and highly duplicative information and data systems that is, central divisions that need data tend to descend upon districts in an uncoordinated manner, resulting in multiple data collections, reports, and inefficiency of effort; Lack of routine, systematic data verification processes for either EMIS data or other information collected from DEOs; Highly variable technical abilities and understanding of EMIS data usage among DEO staff, despite their critical role in operational management and the provision of information on schools; and ES-2 Information for Education Policy, Planning,

15 A surprising degree of paper-based and manual data transmission even by critical departments such as the GES Administration and Finance and Human Resources Management Divisions. Accountability. The assessment team explored the use of data and information for transparency and accountability among the various levels of the education sector and with the public being served. It also considered whether stakeholders perceived the information shared to be accurate and unbiased. At the district and school levels, a recently introduced School Report Card system shows promise as a tool for local education managers and the broader community on school process and performance. Accountability issues that the team noted included Problems with instrument quality and comparability over time of national and local assessments of student performance (NEA and SEA); Inconsistent use of assessment results for programming improvements; Near absence of detailed expenditure information tracked and made readily available at the national level; and Inconsistency across districts and schools regarding activities such as posting budgets and expenditures, using tracking charts to monitor and support teacher performance, and involving the community (School Management Committee, PTA) in education oversight. Review of available data and information systems. The assessment team also examined the features, overall performance, and potential areas for improvement of four key categories of information systems: EMIS, the sector's principal source of official statistics on pre-university educational institutions; the NEA and other student performance systems; Financial management and budget systems; and Human resource management systems. EMIS. The annually updated EMIS database provides comprehensive data and official statistics on schools for national-level reports and planning meetings. In principle, the EMIS should also be the primary source of operational management data for the system. As a key source of data and information for the sector, the reliability of the EMIS is of great importance. In recent years, important strides have been made to improve the utility of data reports and to decentralize a number of EMIS database management functions and increasing capacity of DEO statistics and planning staff to handle the data at their level. Nonetheless, the consistency, reliability, and accessibility of EMIS data and reporting are regularly called into question by central GES managers and development partners, leading to multiple parallel data collections. Development partners also lament the Information for Education Policy, Planning, ES-3

16 limited transparency and availability of disaggregated data in a form that would encourage secondary analysis. Standard EMIS reports present data and indicators in a number of different formats, but without providing in-depth trend analysis or readily accessible comparisons of differences in inputs or performance between regions or districts. EMIS reports present information in the form of pre-processed indicators only for the most part, often with little analysis of apparent anomalous information, and only partial presentation of the base data underlying some indicators. No standard data verification procedures are in place. Finally, funding to manage and maintain the system is erratic, despite annual preparation of a detailed budget. Often, development partners have been obliged to come to the rescue, in order to obtain the EMIS data. NEA and other performance measurement systems. Ghana has demonstrated its commitment to measuring student learning in a rigorous manner over time, through efforts for local and district performance monitoring and formative evaluation such as the Performance Monitoring Test (PMT) and the School Educational Assessment (SEA); periodic, sample-based country-wide assessments such as NEA; participation in the Trends in International Mathematics and Science Study (TIMSS) program; and participation in the West African Examinations Council (WAEC). The NEA's limited sampling frame constrains the sector's ability to assess performance at subnational levels; sampling inconsistencies have also complicated appropriate weighting. There is unknown comparability of NEA test instruments over time, with testing carried out at different moments of the academic year, therefore limiting the validity of inferences made from observed trends. The NEA also suffers from significant time lags between data collection and dissemination. WAEC scores, particularly in their raw form, are not routinely available for external analysis, while annually normed scores do not permit trend analysis. Financial management and budgeting systems. The MOE and GES use financial data systems that, once fully operational and decentralized, should provide the education system with accurate, accessible data at all levels of decentralization. Current systems include a customized ActiveX-platform database system (used for annual budgeting and preparation of the Medium-Term Expenditure Framework [MTEF]); and monthly, quarterly, and annual financial reporting, done manually, by every entity receiving public funds (for the accounting of expenditures). A new government-wide system, the Government Integrated Financial and Management Information System (GIFMIS), will combine budget and expenditures data into a single database, ultimately replacing ActiveX and the current manual expenditures tracking system, thereby allowing finance departments to track and compare expenditures against budgets. Across financial systems, a key problem noted in financial data collection and management was manual preparation of financial records, which causes duplication of effort and prevents use of automated functions within the existing electronic systems, opening the door to avoidable human calculation errors. In addition, budgeting and expenditure tracking processes are not formalized in a way that would ensure they are ES-4 Information for Education Policy, Planning,

17 systematic, consistent, and comprehensive. The Ghanaian government s commitment to transparency and the requirements of sound fiscal control and efficiency would both be served by more advanced and systematic computerization and the analytical power it affords. Human resource management systems. The government as a whole maintains an Integrated Personnel and Payroll Database (IPPD), to which the GES links. The IPPD is used for managing information on every government employee officially working for the GES, including both trained and untrained teachers. No equivalent system exists for contract (nongovernment) teachers even though such teachers form a significant proportion of Ghana s basic and secondary education teaching force. Managing human resources information centrally introduces a host of problems, such as backlogs in the huge volumes of material to be entered (e.g., constant flow of information on new employees, transfers, promotions, leaves, and other status changes); the resulting delays in postings and salary payments; inconsistent monitoring and auditing of changes; and very long lead times to correct errors that are found. These challenges with the GES IPPD are compounded at the DEOs and REOs, where large volumes of human resources records for both government and nongovernment teachers are managed in a purely paper format, such that simply retrieving a specific file can be a challenge. Key conclusions and recommendations Ghana has a decades-long tradition of relevant data and information collection and substantial information transparency. The country exhibits a strong appreciation for data, information, research, and evaluation, and the sector has embraced evidence-based planning and decision-making. Nevertheless, the quality and efficiency of data collection and management are challenged by technical and practical issues, and a certain laissez-faire tendency that has resulted in duplicated efforts and underuse of existing data. The most telling evidence consists of large, inefficient, and uncoordinated paper-based systems; uneven training and equipment for networked data collection and use, both across the Districts and across central Ministry Agencies; and an EMIS that faces serious funding challenges and requires continued improvements in data collection, verification, reporting, and accessibility. The study's principal recommendations, summarized in the table below against key study questions, are tied to these basic issues and the specific areas for improvement identified. Information for Education Policy, Planning, ES-5

18 Summary of recommendations of the Ghana Data Capacity Assessment RECOMMENDATION FOR GOVERNMENT (with Development Partners as appropriate) Undertake more planful, commissioned research. Conduct more relational analysis of available data. Conduct in-depth analysis of disparities in resource distribution across districts. Carry out analysis of the effectiveness and the costeffectiveness analysis of programs and interventions. Study the flow and use of education funding. Promote use of existing data where adequate and appropriate. Continue capacity strengthening of DEOs as critical links for all information systems. Carry out HR records digitization in stages, piloting in a few districts. Pilot decentralized IPPD input centers. Create an all-staff education sector HR database directly updatable by districts. Ground School Feeding Program decisions in data. Establish a standard, start-ofschool-year snap census. Improve availability of information in useful forms. Provide greater transparency and accessibility of the EMIS database Continue to strengthen DEO and REO Statistics staff capacity. Developing & implementing education sector policies, plans, strategies Coordinating and aligning assistance to the sector Supporting USAID / Ghana s fiveyear sector strategy Evaluating & reporting sector progress ES-6 Information for Education Policy, Planning,

19 RECOMMENDATION FOR GOVERNMENT (with Development Partners as appropriate) Stabilize secure government funding for EMIS activities, while pursuing more cost-effective means of recuperating entered data. Streamline the EMIS school census. Improve data accuracy through strengthened data verification routines. District publication of the EMIS Basic School Report for local feedback and data verification. Strenuously pursue 100% coverage of schools in the EMIS database. Speed transmission of EMIS program updates and data. Establish an Education Intervention Coordination Dashboard. Developing & implementing education sector policies, plans, strategies Coordinating and aligning assistance to the sector Supporting USAID / Ghana s fiveyear sector strategy Evaluating & reporting sector progress Information for Education Policy, Planning, ES-7

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21 1. Purpose and Objectives of the Assessment Ghana s education sector has set high goals and objectives regarding educational access, equity, and quality, and their social and economic relevance. The context for these intentions includes a commitment to and expectations of transparent governance, and competing priorities for limited resources. Responsible leaders and actors in the sector need reliable and timely information to (1) make sound decisions, (2) carry out actions efficiently and effectively, and (3) build and maintain the support and trust of stakeholders and citizens. The present assessment examines the extent to which existing data and information management systems and capacities available to Ghana s education sector are fulfilling each of these three broad functions, in the pursuit of stated goals and objectives. This data capacity assessment of Ghana s education sector, funded by the United States Agency for International Development (USAID) through the Education Data for Decision Making (EdData II) project, is intended to determine how well Ghana s data systems serve the following purposes: Informing and supporting the development and implementation of the country s education sector policies, plans, and strategies; Providing the basis for coordinating and aligning external assistance and development partners activities in support of the education sector; Underpinning the development of USAID s five-year country strategy; and Producing data to report on progress in the education sector, including evaluating and reporting on the outcomes and impacts of USAID assistance. The assessment process (see Terms of Reference, Attachment 1) was designed to identify strengths and shortcomings of existing data systems, in terms of both content and quality. The assessment team investigated how well the systems support the strategic, operational, and accountability functions, as well as whether and how actors and other stakeholders actually make use of these systems and the information they contain. In turn, the assessment identified areas for improvement in data and information coverage, accessibility, efficiency, and utilization; this report offers specific recommendations. The impetus for the assessment is fueled by USAID s objective to improve the relevance and evidence basis of USAID missions five-year country education strategies, as well as their alignment with host-country goals and priorities and their use of host-country systems, in keeping with the Paris Principles and the Accra Agenda for Action (OECD, 2005/2008; see Attachment 2 for a complete list of documents consulted). In the case of Ghana, given USAID s focus on basic education support going forward, the assessment placed special emphasis on basic education (i.e., kindergarten, primary school, and junior high school). Information for Education Policy, Planning, 1

22 The Ghana assessment, joining parallel pilot studies carried out by EdData II teams in the Philippines and Mozambique, also contributes to a larger effort to develop and stabilize a sound, effective framework and methodology for future data capacity assessments in other countries. 2. Approach and Methods Employed The starting point for the data capacity assessment of Ghana s education sector was the initial overall framework developed by the EdData II project. This framework simplified in Figure 1 examines five large action areas and three principal questions. Figure 1. Diagram of the framework for data capacity assessment Priority Setting Review and Reporting on Progress Which data are available? How good are they? Which data are actually used? Policy Formulation and Plan Development Management & Monitoring of Implementation Allocation and Alignment of Resources Source: RTI / EdData II (2011a), Data capacity assessment draft framework. The full framework (RTI / EdData II, 2011) offers broad justification and more detailed information on the overall approach. The adaptation and application of the framework in the Ghanaian context are described below. 2.1 Data collection and fieldwork Principal data collection methods that the assessment team employed in Ghana were (1) document review; (2) interviews with actors and stakeholders representing both users and producers; and (3) interviews with managers of data and information systems. 2 Information for Education Policy, Planning,

23 2.1.1 Document review The team reviewed relevant sector policy, planning, strategy and project documents to determine the types of data on which they relied and the extent to which specific data were referenced. They also examined forms and outputs from various data systems (data collection instruments, statistical reports, expenditure reports) and other documents (policy analyses, annual review documents, evaluation reports, special studies) to determine the type of data being made available and the ways in which it was being used. Documents consulted fell into the following categories: Government of Ghana (GoG) and Ministry of Education (MOE) strategic documents MOE and Ghana Education Service (GES) operational plans and performance reports MOE education management information system (EMIS) documentation and related information MOE information systems related to human resources management and development (HRMD) MOE-sponsored instruments and reports on student and school performance GoG and MOE financial management instruments and systems information Other data collection instruments developed by GES units, District Education Offices (DEOs), etc. Evaluations of the education sector and its information systems Census and survey instruments USAID documents Other development partners program and project descriptions. As noted above, a full list of documents consulted is provided in Attachment Interviews with principal users of education sector data and information The team interviewed a variety of consumers of education data and information that they use to carry out their strategic, operational, and accountability functions in the sector. These included education decision-makers, managers and technical staff of key ministry departments, GES central offices and departments, and a few decentralized structures (one Regional Education Office [REO], DEOs, and one school); USAID and other development partners active in the education sector; and independent civil society organizations involved in education sector research. These interviews explored actors experiences and observations with regard to (1) the sources, availability, and quality of data and information needed in education policy and planning, implementation, evaluation, and accountability; and (2) how data and information are used to inform these processes. A full list of information users contacted is provided in Attachment 3. Information for Education Policy, Planning, 3

24 2.1.3 Interviews with managers of data and information systems Team members also led interviews and work sessions with the producers of data and information, namely: technical officers responsible for managing key education data systems (EMIS, Financial Management [FM], Integrated Personnel and Payroll Database [IPPD], the West African Examinations Council [WAEC], and National Education Assessment [NEA]); DEO and REO staff charged with collecting and managing EMIS, human resources, School Report Cards (SRCs), and financial management data at district and regional levels; and the Ghana Statistical Service (GSS). The purpose was to understand how data are maintained, what quality control measures are in place, how data analyses and reports are produced and disseminated, and how requests for information are addressed. Along with the information users, a full list of information producers contacted is provided in Attachment Guiding questions The broader framework also offers a series of illustrative questions on each area of action and on data quality and management. These questions, adapted to Ghana, guided both document review and interviews. The adapted lists of questions are provided in Attachment Analysis process The team analyzed the material gathered through the document review and interviews, categorizing not only by source and nature of the material, but also by the broad functions and specific domains being addressed, and by level(s) of application (national and/or decentralized). The broad functions by which the team organized the material are the following: 1. Strategic functions data and information for priority-setting, policy formulation, strategic planning and budgeting; allocation of resources and services; and the evaluation of impact. 2. Operational functions data and information for programming of activities; operational budgeting; distribution of resources and services; progress and performance monitoring. 3. Accountability functions data and information for communication toward stakeholders on the use of public resources and the effectiveness of policies and programs. 4 Information for Education Policy, Planning,

25 The domains of information explored included: Demand for education Financial management, including budget and expenditures Teacher management and development Teaching and learning curriculum and materials Student outcomes School and system management and performance. A series of working tables assisted in the analysis process. Separate tables addressed the relationship of the broad functions of the sector to the types of data and information within each domain required to carry out these functions, and the ways in which these data and information are used by sector actors; the content and processes of key data management and information systems of the sector; and the adequacy of these systems to provide the information needed. As intended, this process revealed gaps in data and information content and availability, reliability, timeliness, efficiency of production, and use. 2.3 Limitations The application of the data capacity assessment framework in Ghana, as elsewhere given a finite time frame and level of effort required that choices be made relative to the breadth and depth of study. It was not possible to conduct a comprehensive review of every data system and every piece of potentially relevant data, or to take into account the points of view of every actor with an interest in the education sector. Likewise, in-depth empirical tests of data reliability were not part of the scope of this study. Thus, data quality was not directly assessed, although team members noted inconsistencies and perceptions of quality problems where observed, and this report offers their recommendations for strengthening the quality of data going forward. Priority was given to those aspects of data availability and use which experience indicates are most critical to effective sector management, namely data on: resource allocations and funding formulae equity in the distribution of inputs analysis of learning achievement gender distinctions evidence of realistic goal setting sources of funding and programs, both government and external measures of implementation progress/success. Information for Education Policy, Planning, 5

26 Finally, as stated earlier, this data capacity assessment focused predominantly on the basic education subsector (kindergarten, primary and junior high school), in keeping with both Ghana s and USAID s emphasis on this subsector for development interventions going forward. 3. Ghana s Medium-Term Planning Context Ghana s education sector has seen phenomenal growth in access to education and gender equity of access since Independence. According to the EMIS, in , over 3 million children were enrolled in 14,000 public primary schools and over 700,000 in 5000 private schools, for a primary gross enrollment rate (GER) estimated at nearly 95%. Along with enrollments, primary completion rates have steadily improved. Junior high schools in held over 1 million children in nearly 8000 public schools, and over 200,000 children in nearly 3000 private schools. Gender parity was at 0.96 (i.e., the ratio of boys to girls was almost 1:1) in primary schools and 0.92 in junior high schools. Senior high school, technical and vocational education and training (TVET), and higher education access indicators have also improved at the national level. Kindergarten and preschool education have expanded substantially. Ghana s expenditures on education as a proportion of gross domestic product (GDP) are among the highest on the continent. At the same time, important challenges remain. Educational access and resource distribution have continued to lag in deprived districts despite targeted efforts. With student enrollment growth, the proportion of trained teachers in the system has declined. Student learning outcomes have not consistently improved, as measured by the National Education Assessment carried out in grades 3 and 6 in 2005, 2007, and 2009, as well as the Trends in International Mathematics and Science Study (TIMSS)-Grade 8 results over time. Ghana s current Education Strategic Plan (ESP) and the rolling Annual Education Sector Operational Plans (AESOPs) seek to address these challenges. USAID and other development partners are committed to providing technical and funding support for the realization of these plans. The following sections present a brief overview of Ghana s current education sector goals and objectives; the sector s management structure; and the planning cycle and process, including the involvement of development partners. The last section (Section 3.4) discusses the development of USAID s country education strategy and medium-term planning for education support going forward, in light of the new agency-wide Education Strategy (USAID/EPTT 2011) and Evaluation Policy (USAID/BPPL, 2011), and the GoG s expressed goals. 3.1 Overview of Ghana s current education goals and objectives Ghana s ESP pursues eight broad policy objectives that support sociohumanistic, educational, and economic goals (see Table 1) defined and reflected in the 6 Information for Education Policy, Planning,

27 Ghana Education Act of 2008 (GEA, 2009) and the Ghana Shared Growth and Development Agenda (GSGDA Vol. 1, 2010). Table 1. Ghana s Education Sector Plan: Policy objectives by thematic areas Goals Policy Objectives Improve equitable access to and participation in quality education at all levels. Bridge gender gap in access to education. A: Socio-humanistic (access, equity, welfare) Improve access to quality education for people with disabilities. Mainstream issues of population, family life, gender, health, HIV/AIDS and other sexually transmitted infections, conflicts, fire and road safety, civic responsibility, human rights, and environment into the curriculum at all levels. B: Educational (quality, skills development) C: Economic (efficiency, effectiveness) Improve quality of teaching and learning. Promote science and technical education at all levels. Strengthen links between tertiary education and industry. Improve management of education service delivery. Source: ESP It is on the basis of these broad objectives that the annual Education Sector Performance Report (ESPR) is organized, and the resulting Annual Operational Plans (AESOP, Annual Regional Education Operational Plans (AREOPs), Annual District Education Operational Plans (ADEOPs) and monitoring and evaluation plan are formulated. In principle, every intervention proposed in annual and medium-term plans and carried out in the sector is expected to contribute to the realization of one or more of these objectives. 3.2 Education management structure and the policy-planningmanagement-review cycle Management structures Ghana s schools and educational institutions are managed through the Ministry of Education, which comprises central administrative and technical departments including Planning, Budget, Monitoring and Evaluation (PBME) and Statistics, Research, Information Management, and Public Relations (SRIMPR), which bears primary responsibility for maintaining the EMIS database; 13 agencies, including the Ghana Education Service with its central Divisions; 10 REOs; and 170 DEOs and Municipal Education Offices (MEOs). Information for Education Policy, Planning, 7

28 All agencies and decentralized as well as national levels contribute to the policy-planning cycle, as do the sector s development partners. The GES has the mandate to ensure and coordinate implementation of all policy pertaining to basic education and senior high school education, and to develop all formal pre-tertiary educational curriculum and certification. The GES, overseen by a GES Council appointed by the Public Services Commission, is led by a Director General assisted by two Deputy Director Generals. One Deputy Director General is responsible for access and quality issues (Basic Education Division [BED], Secondary Education Division [SED], Teacher Education Division [TED], Curriculum Research and Development Division [CRDD], Technical and Vocational Education Division [TVED], Examinations Division [ED], and Inspectorate Division [ID]). The other Deputy Director General oversees GES management issues (administration and finance; HRMD; supplies and logistics) (interview with GES Deputy Director General for Access and Quality [DDG-AQ]). REOs and DEOs are the decentralized emanations of the GES throughout the country. These offices are charged with coordinating and monitoring activities and interventions in the districts, and compiling and transmitting reports (REOs); and with front-line education service delivery planning, budgeting, and implementation (DEOs). REO and DEO structures parallel the MEO-GES structure to some degree, with Planning and Statistics, Financial Management, Human Resources, and Supervision and Monitoring departments New standard-setting and advisory agencies The 2008 Education Act brought mandates to reorganize the GES, REO, and DEO structures, and to create three new agencies. Of the new agencies, the National Inspectorate Board (NIB) was the first to be established. The NIB has the mission to provide an independent external evaluation of the quality and standards of educational institutions, and the responsibility (a) to undertake the inspection of schools, (b) to evaluate, on a periodic basis, the first and second cycle institutions, and (c) to set and enforce standards to be observed at the basic and second cycle levels in both public and private educational institutions. (Education Act 2008 [Act 778], p. 6) The two other agencies to be created are the National Teaching Council (NTC) and the National Council for Curriculum and Assessment (NCCA). The NTC is charged with advising on professional practice and ethical standards of teaching and teacher training, and with the registration of teachers meeting the standards established. The NCCA is primarily an advisory council on matters of curriculum, examinations, and assessment. These three new agencies constitute significant GoG initiatives to develop, maintain, and enforce standards of educational practice and performance. As such, if implemented as designed, in the coming years they will contribute in important ways to the production of 8 Information for Education Policy, Planning,