Intervention Summary
Education Quality Improvement Programme in Tanzania (EQUIP-T)
What support will the UK provide?
The UK will provide £60 million over the next four years to support the improvement of the
quality of education in primary schools in Tanzania and to increase the number of children,
particularly girls, able to transfer to secondary education. Focusing on approximately 20 of the
165 local councils and supporting national institutions the UK will develop cost-effective and
affordable school improvement models for national scale up by the Government. The
programme will deliver teacher training, management and leadership training, capacity
building of council education officers and officials, improved data and targeted measures to
support girls’ transition.
Why is UK support required?
Although Tanzania is no longer one of the five poorest countries in the world - as it was in the
1980s, it is still in the bottom twenty five. 68% of the population (34 million people) live on less
than £20 a month and 34% (15 million people) live on less than £7 a month. The size of
Tanzania, its poor infrastructure and rapidly expanding population present serious challenges
to providing effective basic services equitably across the country.
There has been a rapid expansion in the number of children attending school. Now almost all
children (boys and girls) go to primary school, but quality is a major issue. Only just over half
of all children learn enough to reach the expected minimum standard by the end of primary
school and in some areas the level is much lower. Only a third of children enrol in secondary
school and as few as one in ten of these pass their examinations at the end of lower
secondary school. Girls are disadvantaged compared with boys, with fewer going to
secondary school and those that do perform worse than boys. There is an urgent need both to
improve quality and tackle geographical and gender inequalities.
The Government of Tanzania lacks sufficient resources to improve and reform systems in
ways that will substantially improve services and overall efficiency. Funds are unequally
allocated so that some districts receive less than others. Only 40% of the funds available for
all levels of education go to primary education, which caters for by far the largest number of
students. Most of this money goes to pay teachers’ wages and there is little money available
to provide essential books and other teaching and learning materials in schools. At the district,
region and national levels, education management structures and systems exist, but they do
not work well enough to deliver good quality education. Teachers generally lack teaching skills
and motivation and are poorly managed. Their rate of absenteeism is high and the amount of
school time in which children are learning is low. There is a general lack of accountability for
poor performance throughout the system.
The UK seeks to demonstrate affordable quality improvement at school and district level that
can be replicated and incorporated into government programmes on a national scale.
DFID’s experience in Tanzania highlights the importance of maintaining a balance of aid
1
instruments. This programme is part of a broader portfolio that includes other interventions in
education and budget support, as well as other direct programming over a range of priorities
including accountability and human rights, public financial management and wealth creation .
What are the expected results?
The expected outcome of this programme is better quality education, especially for girls, and
an approach ready for national scale up by the Tanzanian government. This will be
demonstrated by:
 Improved teaching of early-grade reading and numeracy in 2000 schools, resulting in an
additional 230,000 eight to ten year old children able to read with comprehension.
 More time on task for 1 million primary school children, resulting in an extra 55,000 children
passing their end of primary school examinations.
 27,500 more girls able to make the transition to secondary schools.
Results attributable to UK support through this programme include:
 Professional standards and capacity of teachers strengthened
 Management skills of head teachers improved
 Greater girls participation in a more sustainable and conducive learning environment
 Management and school support systems in districts, wards and regions strengthened
 Accountability mechanisms strengthened
 Robust evidence on learning generated and results effectively communicated.
2
Table of Contents
Intervention Summary ..................................................................................................... 1
What support will the UK provide? ...........................................................................................1
Why is UK support required? ....................................................................................................1
What are the expected results? ................................................................................................2
Table of Contents ............................................................................................................. 1
Abbreviations .................................................................................................................. 2
1. Strategic Case............................................................................................................... 4
A. Context and need for a DFID intervention .............................................................................4
B. Impact and Outcome that we expect to achieve .................................................................. 15
2. Appraisal Case............................................................................................................ 17
A. What are the feasible options that address the need set out in the Strategic case? .............. 17
Summary ............................................................................................................................... 17
THEORY OF CHANGE ............................................................................................................... 20
C. What are the costs and benefits of each feasible option? .................................................... 25
D. What measures can be used to assess Value for Money for the intervention? ...................... 37
E. Summary Value for Money Statement for the preferred option ........................................... 38
3. Commercial Case ........................................................................................................ 40
4. Financial Case ............................................................................................................ 41
5. Management Case ..................................................................................................... 46
Logframe ....................................................................................................................... 59
1
Abbreviations
AFDB
APP
ARV
BAe
BEST
BRICS
CAG
CCM
CFS
CIDA
CPE
CSEE
CSO
DALY
Danida
DFIDT
DPG
DP
EC
EIA
EITI
EMA
EU
FRA
FYDP
GBS
GDP
GNU
GoT
GPSA
IFMIS
IFPRI
ILFEMP
ILMIS
IMF
JAS
KPA
LGA
LGBT
M&E
MDGs
Mkukuta
Mkuza
MoEVT
MOU
MTEF
NAO
NAPA
NEMC
NPV.
ODA
African Development Bank
Annual Procurement Plan
Anti-retroviral drugs
British Aerospace
Basic Education Statistics Tanzania
Brazil, Russia, India, China and South Africa
Controller and Auditor General
Chama cha Mapinduzi (Tanzania’s ruling party)
Consolidated Fund Services
Canadian International Development Agency
Country Programme Evaluation
Certificate of Secondary Education Exam
Civil Society Organisation
Disability Adjusted Life Year
Danish International Development Agency
DFID Tanzania
Development Partner Group
Development Partner
European Commission
Environmental Impact Assessment
Extractive Industries Transparency Initiative
Environmental Management Act
European Union
Fiduciary Risk Assessment
Five-Year Development Plan
General Budget Support
Gross Domestic Product
Government of National Unity (on Zanzibar)
Government of the United Republic of Tanzania
Government Procurement Services Agency
Integrated Financial Management Information System
International Food Policy Research Institute
Institutional and Legal Framework for Environmental
Management Program
Land Management Information System
International monetary Fund
Joint Assistance Strategy
Key Policy Actions
Local Government Authorities
Lesbian gay bisexual and transgender
Monitoring and Evaluation
Millennium Development Goals
National Growth and Poverty Reduction Strategy
Zanzibar Growth and Poverty Reduction Strategy
Ministry of Education and Vocational Training
Memorandum of Understanding
Medium Term Expenditure Framework
National Audit Office
National Adaptation Programme of Action
National Environment Management Council
Net present value
Overseas Development Assistance
2
ODI
OECD
DAC
OI
PAF
PEFA
PER
PETS
PFM
PFMRP
PLSE
PMO-RALG
PMS
PMU
POPC
PPA
PPPs
PPRA
PRBS
PSI
REDD
SAGCOT
SBS
SEA
SSA
Tsh
TSIP
UN
UP
VfM
Overseas Development Institute
Organisation of Economic Cooperation and Development
OECD - Development Assistance Committee
Outcome Indicator
Performance Assessment Framework
Public Expenditure and Financial Accountability report
Public Expenditure Review
Public Expenditure Tracking Survey
Public Financial Management
Public Financial Management Reform Programme
Primary School Leaving Exam
Prime Minister’s Office Regional and Local Government
Poverty Monitoring System
Procurement Management Units
President’s Office Planning Commission
Public Procurement Act
Public Private Partnerships
Public Procurement Regulatory Authority
Poverty Reduction Budget Support
Policy Support Instrument
Reducing Emissions from Deforestation and Forest
Degradation
Southern Agriculture Growth Corridor of Tanzania
Sector Budget Support
Strategic Environmental Assessment
Sub-Saharan Africa
Tanzanian Shillings
Transport Sector Investment Plan
United Nations
Underlying Process
Value for Money
3
Business Case for the Education Quality Improvement Programme in
Tanzania (EQUIP-T)
1. Strategic Case
A. Context and need for a DFID intervention
RATIONALE
1.
Tanzania is one of the poorest countries in the world; in 2011 it was ranked 152 out of
187 countries on the human development index1. Although Tanzania’s economy grew
between 2001 and 20072, this did little to reduce poverty as those whose incomes
increased in absolute terms were largely from the richest socioeconomic quintiles3.
2.
Over last decade, the Government of Tanzania has been very successful in increasing
enrolment rates in primary education (from 55% to 94%), but quality has suffered and
over the last five years Primary School Leaving Examination (PSLE) pass rates have
fallen from 70% to 53%, with serious implications for students, their families and the
country. Poor attainment at primary level has knock-on effects on transition rates and
results in secondary schools. The situation is especially bad for girls and children living
in poorer, under-served areas. There is an urgent need both to improve quality and
tackle geographical and gender inequalities.
3.
DFID’s overarching objective is to reduce poverty and to see Tanzania become
independent from overseas aid. DFID has been investing heavily in the education
sector through General Budget Support (GBS) and recently introduced Sector Budget
Support (SBS) for the education sector. Varying aid instruments is seen as a necessary
supplement to bring about improved quality. DFID is committed to increasing the
number of children, particularly girls, successfully completing primary education and
accessing secondary education. Improving quality is essential to successfully fulfilling
this commitment.
4.
A DFID intervention to address education quality will have high impact because:
 Government currently lacks sufficient resources to innovate and reform
systems in ways that will substantially improve services and overall efficiency.
DFID can demonstrate affordable quality improvement at school and council
level that can be replicated and incorporated into government programmes on
a national scale.
 Significant long-term educational, health and growth effects can be expected
from an intervention that focuses on learning achievement at primary school
and laying the foundation for transition into secondary school, particularly for
girls.
 The quality of education is an increasingly important political issue in Tanzania,
both within government and among Civil Society. The attention given to a
series of poor examination results has made the government more receptive to
addressing quality issues.
CONTEXT
4
5.
Tanzania is a large, poor country. 68% of the population (34 million people) live on
less than £20 a month and 34% (15 million people) live on less than £7 a month; only
34% of children enrol in secondary school; over 30 million people use inadequate
sanitation; 42% of all children are stunted through chronic malnutrition; natural
resources are over exploited; malaria deaths remain high and one woman in every 23
dies in childbirth. Tanzania’s population expected to increase from 45 million in 2010 to
82 million by 20304.
6.
Better education is essential for economic growth. If Tanzania is to grow richer, it
needs a literate, numerate and skilled workforce. Many investors in Tanzania
currently see this as a critical constraint5.
7.
Access to education has improved in a relatively short period of time. Since 2000,
when the government abolished primary school fees, access has expanded from
4.38m to 8.4m children with a net enrolment rate of 94%. Secondary education began
expanding in 2006, at a time when there were only 260,000 children in lower secondary
school. Now there are 1.74 million, bringing the net enrolment rate to 35% in 2011.6
8.
Investment in education has not expanded in line with the large scale up of
access at both primary and secondary levels. Education is the largest sector of the
Government’s budget7. At national level, the sector budget has remained relatively
stable at around 18% of the total Government budget. This is still below the
international indicator of 20% for effective implementation of education service
delivery.8 Government commitments to higher education have meant a reduction, over
the last 5 years, in the funding available for primary education. The allocation to the
primary sub-sector has dropped in 2011/12 to only 40% of total government spending
on education. The funding available for secondary education is also low, considering
the rapid expansion that has occurred (on average 15% of sub-sectoral allocation).
85% of primary education expenditure is on salaries.9 Expenditure on items other
than salaries is low. Primary schools receive less than £2 per child last year out of a
planned £8 per child in “capitation grants”(funds allocated on the basis of the number of
children enrolled in each school, to pay for books, learning materials and minor
repairs).10
The need for quality improvement is critical
9.
The rapid expansion of education provision has been at the expense of quality.
Only just over half of all primary school children pass the primary school leaving exam
(figure 2 below).11 A recent survey showed that primary students have low literacy and
numeracy levels.12. Tanzanian primary school students do worse in standardised tests
compared to students in Kenya and Uganda. Only 30% of standard 3 students are able
to read a story in Kiswahili; only 10% can read a story in English; and only 30% can do
basic addition, subtraction and multiplication. At the end of primary school, less than
half understand basic English.13 The lack of English by the end of primary school
contributes to failures in secondary school, where the language of instruction is
English.
10.
Poor results in the lower secondary leaving examination (CSEE) are due in large part
to ineffective schooling at the primary level. The proportion of students with CSEE
failures and marginal passes has been increasing, from 64 per cent of examinees in
5
2006 to 89 per cent in 2011.
Figure 1: PSLE and CSEE Pass Rates
Pass Rates
Primary and Lower Secondary (Div I-III)
100%
90%
80%
70%
60%
Primary
50%
Lower
Secondary
40%
30%
20%
10%
0%
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
Source: BEST 2011
11.
The Government’s education strategy is set out in the Education Sector Development
Plan (ESDP II), which lays out the policy framework up to 2017. Although education
policies are generally sound, there is low capacity to plan manage, and monitor
implementation of these policies. Education management structures and systems
exist, but they do not work well enough to support quality service delivery. The
Ministry of Education and Vocational Training (MoEVT) determines the policy
framework and various national parastatals are responsible for different aspects, such
as the curriculum and examinations. Responsibility for service delivery lies with 165
Local Government Authorities (LGAs), under the oversight of the Prime Minister’s
Office - Regional and Local Government (PMO-RALG). Control of the wage bill and
policies on allowances, etc. lies with the President’s Office Public sector management.
12.
There is weak capacity at Regional and Council level to provide resources for schools,
to collect and use data on performance and to monitor quality effectively. Planning and
budgeting at council level is complicated by a multiplicity of funding lines, limited
discretion at local levels and uncertainties over the amount and timing of fund flows.
Budget execution is a problem, with plans rarely fully implemented. Decentralisation
has effectively stalled and division of responsibilities is unclear, reducing accountability
for service quality. While there is undoubtedly corruption within the sector it is difficult to
estimate to what extent the apparent misuse of resource is true corruption and how
much weak management and accounting or rational reprioritisation in a resource
constrained environment.
13.
Education provision in Tanzania is not achieving value for money. The cost per
leaving exam passer remains high at £600 for a 7 year primary education cycle and
£800 for a 4 year lower secondary education cycle. 14 These figures mask large
variations in spending per passer across Tanzania.
14.
Most schools are under-funded, but unequal allocation of resources among
6
districts and inefficiencies within districts mean that schools in some generally
poorer areas are disproportionally under-resourced15. Funding for service provision is
geographically skewed towards wealthier and urban districts. Primary school capitation
grants show huge differences, with the best-resourced districts receiving over three
times as much money per student as the worst-resourced districts. The differences in
staffing budgets are even more stark.
Figure 2: Pupil Teacher Ratio by District (Tanzania Mainland only, 2010)
15.
Whilst teachers’ salaries account for most of the spending, disparities in funding are
reflected in uneven teacher deployment and wide disparities in Pupil/ Teacher Ratios
(PTR). The greatest shortages occur in remote rural schools serving the poorest
populations. Variations in Pupil-Qualified Teacher Ratios are wider still.16
16.
There are also wide geographical disparities in results. The average primary school
leaving exam pass rate of 53.5% masks large disparities. Pass rates range from a high
of 70% in Arusha to a low of 39% in Singida.17 In about seventy per cent of districts
there is a strong correlation between resource levels and results. However, in about
thirty per cent of districts this correlation is less clear, and may reflect confounding
factors such as long term investment trends, other socio demographic characteristics
or inefficiencies, related to the quality of service delivery. 18
Figure 3: General performance in PSLE (proportion of pupils passing the
exam) by region, 2010
7
17.
The education system fosters and reinforces a demoralising culture of failure.
Half of all primary students and a staggering nine out of ten lower secondary students
are failing to pass their leaving exams and proceed to higher or alternative levels of
education. Teacher education and training is poor and produces teachers with low
levels of competence in the teaching of literacy and maths and limited subject
knowledge in key areas such as English and sciences. Teacher training colleges have
consistently taken in the weakest students. This has meant the least able students
become teachers.19 Teachers generally lack motivation and their career structure does
not encourage progression based on performance.
18.
The availability of textbooks, supplementary readers and other learning materials is
inadequate. Insufficient provision and maintenance of school infrastructure contribute
to poor learning environments.20
19.
There are low expectations and insufficient adherence to minimum standards of
professionalism throughout the system, (relating to codes of conduct, absenteeism,
time on task and accountability for results). Management and leadership capacity
across all levels is weak.
20.
Girls are disproportionately disadvantaged. Although the numbers of boys and girls
enrolling in primary schools is roughly equal, girls have higher dropout rates. Girls also
do less well than boys in the primary leaving examination. Their pass rate is 49%
against 56% for boys. Fewer girls make the transition to secondary school than boys
and only 45% of secondary school students are girls. Overall secondary examination
pass rates are low, but for girls they are significantly worse than boys. 12% of boys and
only 7% of girls passed their end of lower secondary (Form IV) exam in 2011.21
8
21.
Low rate of girls’ completion at primary and transitioning to secondary is affected by
early marriage, pregnancy, house work and lack of water and sanitation facilities in
schools. In some communities girls are encouraged to fail by their parents while in
other communities they are needed to participate in activities to sustain household
livelihood activities and or take care of the sick members of the family. Only 38% of
schools meet the baseline sanitation standards. There is some mixed evidence on the
links between improved water and sanitation/hygiene and girls’ attendance, which is
good in Asian/Muslim countries, but is limited for Sub-Saharan Africa.22 Approximately
20 million (44%) of people still lack any access to clear and safe water in Tanzania,
placing a disproportionate burden on girls to be engaged in water collecting activities
when they should be at school. Both issues act as a barrier to girls’ education.
22.
Tanzania is challenged with high fertility rates, Education of girls can reduce fertility
rates, and should accelerate the demographic transition and stabilisation of population
pressures on water and other natural resources
23.
Gender based violence remains high in Tanzania. A recent study by UNICEF found
that more than half of girls experienced physical violence by teachers before turning 18
years of age.23 A physically safe learning environment is necessary for girls to
complete school.24 Sexual violence is the most extreme symptom of a school climate
in which girls cannot learn well. Other, more subtle gender dimensions of the school
environment, such as teacher attitudes and reliance on harsh and arbitrary forms of
discipline, are also important. A report from CAMFED showed that corporal punishment
was perceived as acceptable by more than 82% of respondents.25 Non-financial
corruption and other abuses of power and patronage are an issue which is again
associated with weak management and a demoralised workforce
24.
Participation of children with disabilities and those from nomadic communities is very
low. Currently only four out of ten children with disabilities attends primary school.
Children with milder learning or physical disabilities which may not be recognised (e.g.
visual impairment) are not included in national statistics, but are likely to be present in
every class. Statistic on the number of nomadic children in school or out of school is
not easily available but information available suggest that only about 20% of Maasai
children of school age were in primary school and only one third of these were girls26.
25.
The impacts of climate change are already being seen in Tanzania; increased
intensity and frequency of natural disasters; floods and drought, increased variability of
precipitation patters, increasing mean annual temperatures and, increased
unpredictability of ‘seasons’. The overall picture is that Tanzania is becoming
increasingly vulnerable to climate change although the level of vulnerability and type of
change will vary from region to region. Increased conflicts and changes in settlement
behaviour are already resulting from climate variability in Tanzania.
Climate change and environmental degradation result in decreased attendance
at school: Climate change contributes to and exacerbates environmental degradation
and both result in increased vulnerability and a deterioration of family livelihoods.
Research in Côte d’Ivoire linking rainfall patterns and investment in children’s
education shows that in regions experiencing greater-than-usual weather variability,
school enrolment rates declined by 20 per cent for both boys and girls.27 Poor people
are highly dependent on natural resources and climate sensitive sectors for their
livelihoods and income. Both have the potential to significant decrease the level and
26.
9
sustainability of incomes. Reductions in household income influence decisions
regarding the number and the gender of children sent to school as well as the ability of
families to support their regular school attendance. In addition, deteriorating livelihoods,
increased water and fuel wood scarcity under climate change scenarios will increase
the time required to collect clean water and fuel wood.. Research suggests that in all
instances these activities disproportionately affect girls, impacting on gender equity and
female student performance.28
27.
Education provides a significant opportunity for improving environmental management–
a direct contributor to improve livelihoods and economic growth – and building
resilience to climate change: “A well educated population is better equipped to
recognize in advance the threats posed by a changing climate and to make
preparations”29.
Evidence of what works
28.
International evidence of what works in education is significant, with many studies
available30 and an ever-increasing number of evaluations (including impact evaluations
underway) although gaps in evidence remain31, which DFID is reviewing. Tanzaniaspecific evidence is available in some areas but limited in scope. It is a key
concern for this programme to incorporate the building of evidence through robust
evaluation, which could include impact evaluation to determine the effectiveness of the
approach being taken. Through this programme, the key evidence gaps in the
education sector in Tanzania will be addressed, accessing assistance through central
DFID research and evaluation support.
29.
The evidence of the need for more targeted approaches to address the quality of
education is strong and growing32. This includes the recent Independent
Commission for Aid Impact (ICAI) report findings which noted DFID’s commitment to
improving education outcomes but highlighted the need to review and improve the
recent strategies and approaches to rise to the challenge of helping Tanzania, Rwanda
and Ethiopia to achieve better quality results and see more children leaving the system
able to read and write.
30.
Lessons have been learned from programmes already delivered in Tanzania and
have helped to shape the development of this support. Specifically, large scale
government programmes such as DPSE and PEDP I and II found that while concepts
such as school development planning are useful in focusing attention on quality issues,
to be sustainable they need to be thoroughly understood and perceived to be useful by
staff in schools. At a programme level the implementation of change should avoid rigid
formulaic approaches and the assumption that new practices can be introduced and
scaled up rapidly without sufficient preparation. CSO-led work has also been
instrumental, such as the EQUIP project in Shinyanga, managed by OXFAM with
European Commission funding up to 2008. This was primarily an in-service teacher
training project, which had some success in introducing child-centred pedagogy in 172
schools in the district. However an evaluation found that greater attention to head
teacher training was needed and that support should also have been focused on
change management and monitoring at the ward and district levels.33
31.
There is strong evidence to support the need to improve teacher quality and
10
professionalism34. Understanding what influences teachers to teach and motivates
them to teach better is important. A recent study in Tanzania35 found that the main
motivation for entering the teaching profession was because of job security and that it
was the main job available. There is also increasing evidence around the links between
teacher pay and learning outcomes36 .
32.
In relation to language of instruction, there is strong evidence on the need to work
within local languages to improve early literacy and numeracy37, as well as about how
the language used influences teaching strategies and how targeted teacher
professional development can assist learning to take place. 38
33.
There is growing evidence that leadership and management, particularly through a
school based management approach, is critical for effective teaching to take place. 39
34.
International evidence supports the value of promoting community empowerment
and parental involvement40. Within Tanzania, there is some evidence from Haki Elimu
to show that citizen empowerment and increased accountability can bring about
parental awareness and demands for better service delivery.41
35.
Additional Tanzania specific evidence from Haki Elimu and the work of the Friends of
Education network substantiates the international evidence that sustained campaigns
that come from the community can promote girls’ retention and completion of school 42.
There is some international evidence that the transfer of responsibilities to the local
level can build demand for effective local governance, and improve the delivery of
public services.43
36.
There is a large body of evidence that shows that investing in quality education
contributes to the achievement of other MDG/development goals: poverty
reduction and increased equity of service delivery provision, reduced HIV/AIDS,
reduced child mortality44, higher uptake of contraceptives and family planning
methods,45 improved birth spacing and stronger economic growth 46. Learning
outcomes in Tanzania are compromised by very high rates of malnutrition (40%
children under 5 are stunted and may have associated cognitive impairment). In the
longer term educated girls are much more likely to be able to feed their children well
and reduce malnutrition in subsequent generations.
37.
There is strong evidence of the influence of ‘girl-specific’ measures on the retention
of girls in school. These include (a) the posting and retention of female teachers; (b)
gender-sensitive teaching; (c) accessibility of counsellors; (d) provision of bursaries to
girls (e) re-entry policy for pregnant girls and (f) safe school environments without the
threat of violence.47 There is evidence that having those female teachers in the
classroom influences girls behaviour and can improve gender equity as the teachers
act as role models for girls and can help create safer school environments.48
38.
International experience shows it is critical for the community level to be engaged in
issues related to gender equality. As girls proceed through the school system and
reach puberty, their roles in society, school and at home become more prominent and
hard economic choices start to be made by families. Community engagement becomes
important to ensure that girls are attending regularly and complete the school cycle.
Seasonal cycles of labour and support in the home can disrupt girls’ attendance more
11
than boys where it becomes the norm for high female drop-out rates and an
environment where it is not ‘normal’ to finish school.49
39.
Evidence from field visits during the design of this programme showed stark contrasts
between schools and what is possible in the Tanzanian context. One particular school
visited was not particularly advantaged in terms of physical resources or the number of
teachers, but was well managed and purposeful. The school was neat and tidy and
organised in ways that encouraged time on task and focused on learning outcomes.
Teachers produced lesson plans, which were monitored by an energetic head teacher
and there was some attempt to involve the pupils in lessons. Both teachers and pupils
appeared motivated. There was an active school management committee and a
committed Ward Coordinator. These features of the school were reflected in higher
than average pass rate in the Primary School Leaving Examination and this reinforced
a sense of pride in the school.
NEED FOR DFID INTERVENTION
Changing aid modalities in Tanzania
40.
DFID Tanzania is broadening the number of aid instruments used, an approach
recently endorsed by the draft report of the Independent Commission for Aid Impact
(ICAI).50 General Budget Support (GBS) has been the main aid modality in Tanzania
for most of the past decade. It has supported the expansion of access to education and
addressed cross-sectoral issues, such as strengthened public financial management
(PFM) systems. However, budget support alone is not sufficient to tackle the
challenge of increasing quality. .51
41.
Sector Budget Support (SBS) was added in October 2011 to strengthen support to
the education sector. Through SBS, the policy dialogue becomes more strongly
focused on issues of quality because of the emphasis on improving learning outcomes
and equitable access across the country and for both boys and girls. It allows for
greater emphasis to be placed on better efficiency, public financial management and
value for money. For example the full payment of the capitation grant to primary and
secondary school has become one of the three factors upon which the performance
tranche is based. If this is an insufficient incentive, all the SBS funds will be earmarked
to cover capitation grants in the final year. However, it is not an aid instrument that, on
its own, can provide specific support to targeted areas of priority: such as improved
geographic and gender equity across the country, and the evidence that will be gained
from this project will substantially enrich the quality of sectoral dialogue
42.
This education quality improvement programme (EQUIP-T) is being introduced to
complement both General and Sector Budget Support and produce synergies in
terms of results and better value-for-money. In addition, the portfolio of aid instruments
will soon include the Basic services innovation Fund, which will support innovative
initiatives by non-state actors, such as Cash on Delivery Aid and the use of ICT. DFID
is also supervising the BAE funded Primary Education Support Project (PESP), which
is providing textbooks, teachers’ guides and syllabi to primary schools. Moreover, as a
focal country for the DFID Girls’ Education Challenge Fund (GEC), further inputs are
expected to enhance the overall impact of DFID’s support to girls’ education.
12
43.
The Education Quality Improvement Programme in Tanzania (EQUIP-T), with its focus
at primary level and improving learning outcomes, particularly for girls, will
complement other reform programmes working on broad structural issues such as
salaries, career structures and incentives, public financial management, Local
Government reform, public sector reform and fund flows. Figure 2 shows the cluster of
DFID programmes and the interdependence and cohesive nature of the wider suite of
interventions. Budget support provides the financial resource and links with macro level
discussions, whilst EQUIP-T will work on systems and process within the education
system and developing the evidence base of how sustainable improvements in quality
can be made.
Figure 4: DFID education programmes interdependencies
DFID Aid
Instruments
DP PFM and
PSR
programmes
MOEVT
PMO-RALG
National
institutions
GBS
SBS
Local
Government
EQIPT
PESP
(BAE
books)
Innovation
Fund
Schools
GEC
CSOs
Communities
Feasibility of DFID’s intervention
44.
Education is a DFID priority and DFID Tanzania has an established position as a
leading partner of the government in the education sector. The UK has chaired the
Development Partners Group (ED DPG) for the last four years; developing strong
individual and institutional links with the MoEVT and PMO-RALG. DFID is also leading
a donor collaboration around monitoring and increasing equity in funding flows between
districts, and is very active in the public financial management group.
45.
The timing of this intervention is opportune. The current political environment may be
more receptive to education reform, as the governing party and the opposition gear
up for the 2015 elections. The Minister and Permanent Secretary of MoEVT have
expressed commitment to improving the quality of education and there also appears to
be support within PMO-RALG for streamlining service delivery. Through a combination
13
of aid instruments, DFID is well placed to assist the Government of Tanzania to seize
the opportunity to focus concrete actions on improving quality education and learning
outcomes.
46.
DFID is the Development Partner Group on Environment lead on climate change and is
setting the benchmark of climate proofing our programmes in all sectors. Being
ambitious in integrating climate change and environment into the education programme
puts DFID at the forefront of ensuring our programmes and investments deliver results
and value for money in the context of a changing climate. With the forthcoming launch
of the National Climate Change Strategy, the timing is right for a strong drive on
improving Tanzania’s response and preparedness to climate change. Tanzania is one
of the only countries with an environmental education strategy, which although
imperfect is a starting point for and dialogue creates a possible opportunity for bringing
climate, environment and education together in Tanzania.
What our partners are doing
47.
Improving quality is the key issue about which all stakeholders are concerned.
Government is conducting research into the successes and challenges of PEDP II; why
the quality of pass rates has fallen so significantly at secondary level and remains low;
and why the net enrolment ratio at primary is dropping. The development of PEDP III
will incorporate these findings and, with support from DFID and other DPs, be finalised
within the next 6 months. That will provide a steer from Government to address the key
quality constraints at primary level.
48.
Development partners are well harmonised in the sector, with 8 active partners,52
supporting the Government through various aid instruments: from GBS (DFID, CIDA,
SIDA, WB), SBS (DFID, CIDA), and projects (USAID, WFP, UNICEF, UNESCO). The
partners have a unified position to focus the sector dialogue on key quality and equity
areas to ensure that the 3 Rs (reading, writing and arithmetic/maths) remain high on
the agenda and result in improved learning outcomes. The key areas identified for
2012 are:
 Improving the quality of Teachers ability to deliver
 Capacity Development at all levels
 Improved functional literacy and numeracy
 Improving Girls’ access and attainment
 Roles of Inspectorate in Quality Assurance
 GPE appraisal (which includes operationalizing the national ESDP II)
49.
Civil Society Organisations have an important role to play, especially in providing
examples of what can work and advocating for improved quality. There is an umbrella
organisation (TENMET) that represents over 100 NGOs working on education in
Tanzania that engages at the national level. Other large NGOs are working on quality
improvement projects include OXFAM53 at school/council level; HakiElimu on evidence
generation and tools for advocating at school/council level; UWEZO on evidence of
learning at primary level (particularly literacy and numeracy attainment; Save the
Children on Gender based violence in schools; VSO, British Council and Peace Corps
on improving teacher education both in-service and pre-service at school/council and
institutional levels. Continued support to CSOs is important to ensure effective delivery
of EQUIP-T.
14
The consequences of DFID not intervening
50.
DFID would have to rely solely on GBS and SBS to bring about the desired changes.
Evidence54 suggests that while budget support has had many beneficial outcomes, it is
too blunt an instrument to bring about appreciable improvements in education quality.
Without this new intervention, equitable improvement of quality would be less
likely, particularly in the less well-served areas of Tanzania.
51.
Operating within tight fiscal constraints, the GoT has not prioritised the funding of the
full development costs of interventions such as national scale teacher training, that can
stimulate systemic changes to improve quality and ensure effective learning is taking
place. This means that learning outcomes will remain low.
52.
With GBS and SBS support, boys and girls would achieve the benefits expected from
primary education and gain access to lower secondary education at a slower pace than
with this additional support, particularly to those councils that are achieving poorer
learning outcomes. In addition, the focus on improving girls’ outcomes remains underprioritised. This would have negative consequences for the children themselves and
their communities and would threaten the achievement of MDGs.55
B. Impact and Outcome that we expect to achieve
53.
Improvements in education take a long time. For this reason the full impact of the
intervention is not expected after four years. It is anticipated that a second four-year
phase will be necessary, subject to evaluation of progress.
54.
The expected impact and outcome that are attributable to DFIDT support through the
EQUIP-T programme will be as follows:
Impact
Better learning outcomes,
especially for girls across
Tanzania
Outcome:
Better quality education,
especially for girls and
approach ready for
national scale up
Results
 Systems for improving education quality and learning
outcomes scaled up across the country
 55,000 additional passers in primary school leaving exam
(50% girls)
 230,000 grade 3 children (age 8 to 10 years) able to read
with fluency and comprehension




Models for improving teaching and management
developed and tested in twenty districts
Improved teaching of early-grade reading and numeracy
in 2000 schools
More time on task for 1 million primary school children
27,500 more girls able to make the transition to secondary
schools
This is a complex project and in reality the outcome has three subcomponents:
 Improving basic literacy and numeracy for all children
15


Enhancing learning opportunities for girls and their transition to secondary school
Improving English language skills, so that children can learn in the first years of
secondary school
These are all critical issues and as a lead development partner in the sector, notwithstanding
a desire to focus they are all areas which DFID should address and to which we can add
value. The decision to incorporate them in one project is to maximise synergies, and ensure
maximum efficiencies in service delivery.
55.
To achieve this outcome the programme will deliver the six following outputs:
i.
Enhanced professional standards and capacity of teachers
ii. Enhanced school leadership and management skills
iii. Greater girls participation in a more sustainable and conducive learning
environment
iv. Enhanced management systems and capacity at all levels
v. A more transparent, accountable and responsive system to citizens and
communities
vi. Robust evidence on approach and results effectively communicated.
56.
Further detail on the expected results for each output is provided in the EQUIP-T
logframe.
16
2. Appraisal Case
A. What are the feasible options that address the need set out in the Strategic
case?
57.
There are five options:
1)
Do nothing: counterfactual.
2)
Support to national education initiatives: improve teaching and
learning, especially for girls, through support to national education
programmes in around 25 councils.
3)
Decentralised education improvement: an integrated ‘whole of system’
approach focused at the council level involving school improvement
features of Option 1 plus a focus on education governance and
management systems in approximately 20 councils.
4)
Local government education financing: direct payments made to
councils to support education activities
5)
Working only through NGOs: all funding would be provided directly to
NGOs.
Summary
58.
The quality of evidence for each option is given below:
Option
0
1
2
3
4
59.
Evidence rating
Medium
Medium
Medium
Limited
Medium
The likely impact (positive and negative) on climate change and environment for
each feasible option is assessed as follows:
Option
0
1
2
3
4
Climate change and
environment risks and impacts
C
C
C
C
C
Climate change and
environment opportunities
C
B
B
B
B
Where A, high potential risk / opportunity; B, medium / manageable potential risk / opportunity; C,
low / no risk / opportunity; or D, core contribution to a multilateral organisation.
17
60.
From an analysis of the five different options using the critical success criteria it is
clear that options 1 and 2 are both feasible options, which could achieve the outcome
of better quality education, especially for girls and provide an approach ready for
national scale up. Options 3 and 4 are ruled out because they are judged not to be
feasible in the Tanzanian context, are unlikely to raise education quality as effectively
as Options 1 and 2 or provide sufficient VFM.
61.
In view of this, the remainder of the appraisal will comprise an integrated appraisal of
Options 1 and 2 against the counterfactual Option 0 (the “do nothing more” option).
CSC
1
2
3
4
5
Description
Weight
(1-5)
A= score B =
Weighted score
Sustainable
5
improvements in
the capacity of
primary schools to
provide better
learning
opportunities
Affordable models 5
of education
quality
improvement
available for scale
up by the GoT
Increased
4
opportunities for
girls to make the
transition to
secondary
education
Opportunities to
2
create synergies
with other DFID
interventions
Low risk of
3
corruption and
misuse of funds
Total
Option 0
(Counterfactual)
Option 1
(Education
only)
Option 2
(Education
Plus)
Option 3
(Districtbased
financing)
Option
4
(NGOs)
A
B
A
B
A
B
A
B
A
B
2
10
4
20
5
25
3
15
2
10
0
0
4
20
5
25
3
15
3
15
2
8
4
16
4
16
2
8
4
16
0
0
3
6
5
10
4
8
1
2
2
6
4
12
3
9
1
3
3
9
24
74
85
45
52
18
The Problem: Expansion of primary and secondary enrolment and access has been at the expense of education quality. Pupil-teacher ratios are high. Teachers are poorly
educated. Pass rates at primary have deteriorated and are worse for girls than boys and there are geographical inequalities. Textbooks and school infrastructure (especially
WATSAN) are inadequate. The primary sector budget is declining and emphasis has shifted from Primary to Higher education. Responsibility for the sector is split between
MOEVT (policy and regulatory role) and PMO-RALG (implementation through local government and schools, where management capacity, supervision and systems are weak.
Strengthening Systems underpins all activities
INPUTS
£60m
over
4 years
Activities
 INSET training
 Pre-service teacher
education
 ELT and early years reading
 Lesson plans
 Supply of water and/or
sanitation facilities
 Supp. reading materials
 Training and mentoring for
heads/deputy heads/
academic officers
 Innovative approaches
 Girls clubs, science camps
 Addressing GBV in schools
 Mainstreaming gender
 Training education managers
and supervisors,
 EMIS, inspection /supervision
systems
 Liaison with PMO-RALG,
LGRP,
 Rehabilitation of support
services (e.g. TRCs)
 Train SMCs, empower.
 Support to UWEZO, HE and
other transparency initiatives
 Evidence, lesson learning,
enhancing communications
 Strengthening policy dialogue
Intermediate Outcomes
Outputs
Outcome (2017)
Enhanced
professional standards
and capacity of
teachers
Enhanced school
leadership and
management skills
Enhanced management
systems and capacity at
all levels
Fig. 5
THEORY OF
CHANGE
Better teaching
and learning
Greater girls participation
in a more sustainable
and conducive learning
environment
Better gender
equity
More transparent,
accountable and
responsive system to
citizens and communities
Better, more
accountable
governance of
the education
system
Robust Evidence on
approach and results
effectively communicated
Evidence Based
Policy making and
Scale up
Impact (2021)
Better quality
education,
especially for girls
and approach
ready for national
scale up
Better learning
outcomes,
especially for
girls across
Tanzania
Key
Strong evidence
Medium evidence
Limited evidence
Activity to Output assumptions
The training can be effectively delivered.
Allied institutions are willing to change.
That this package of interventions will be motivating for teachers and
incentivize them to manage learning more effectively.
Output to Outcome assumptions
Outcome to impact assumptions
Better managed teachers will be motivated to attend, teach and
provide safer environment to their students.
Parents willing and able to send their children to
school
Integrated approach is necessary to improve enrolment, transition,
and completion and pedagogy.
Government and DPs continue to prioritise quality
improvements in primary education
19
THEORY OF CHANGE
62.
Basic education is delivered through a decentralised education system. Teachers are
the largest component of the public sector workforce. Many of the factors related to
education provision are influenced through broader public sector reforms, and are
beyond the scope of this project. However there will be two ways information flows
between this project and broader reform priorities that DFID is working on through
other routes. The project will provide examples and deepened understanding of the
key challenges and bottlenecks on the ground – but is not responsible for leading the
dialogue or achieving change.
a. Pay and incentives policies, and other issues concerning terms and
conditions are dealt with through the public sector reform programme.
b. The flow of funds to districts, resource allocation formulae, and the way
that these are used are discussed in the local government programme,
and to an increasing extent the public financial management programme
c. Inequities in pupil teacher ratios between districts are part of a larger
debate through the GBS dialogue
63.
The expansion of primary and secondary school enrolment has been at the expense
of education quality in Tanzania. This has resulted in declining pass rates in primary
school leaving examinations and a high number of children failing to acquire basic
numeracy and literacy before leaving primary school. Management, supervision and
systems within the sector are weak resulting in inequitable allocation of resources and
disparities in achievement amongst learners, which disproportionally affect girls and
those living in rural areas.
64.
The Education Quality Improvement Programme in Tanzania will be one of a number
of DFID programmes that aim to improve the quality of education in Tanzania.
EQUIP-T’s primary aim is to enable existing government systems to work better and
improve learning outcomes at primary school level and particularly for girls. It will
need to complement the existing and new DFID programmes outlined below:





65.
Sector Budget Support: supporting the Government of Tanzania to
implement its ESDP II
Girls Education Challenge Fund: improving access and quality primarily for
girls at primary and secondary levels
Human Development Innovation Fund: may include support to resultsbased aid in education and ICT
Public Sector Reform Programme: aims to improve results and
accountability amongst civil servants, 56% of whom are teachers, includes a
salary improvement strategy to reduce the amount of time teachers use to
collect their pay
Primary Education Support Project (PESP) (using the BAe payment): to
delivery over 18 million textbooks, 420,000 teachers’ guides, syllabi, syllabi
guides and £5 million of desks to primary schools.
An analysis of the current education sector has concluded that most of the elements
of a good system are there, however they are currently unable to discharge their
functions due to insufficient funds, poor organisation and low management capacity.
In addition, there is a lack of clarity about roles, responsibilities and accountabilities
20
between MoEVT and PMO-RALG and within districts56 (also see Institutional
Appraisal below).
66.
Figure 5 depicts the theory of change for EQUIP-T. It shows how the activities,
outputs and intermediate outcomes will lead to the programme’s outcome and in turn
the impact.
67.
The programme’s desired impact is to achieve better learning outcomes for children
in Tanzanian primary schools. The programme will contribute to this impact through
its outcome of providing better quality education, especially for girls in a number of
districts. In addition it will develop a cost-effective approach, which is ready for
national scale up by the government.
68.
Achieving the impact requires sustained commitment over a number of years and
therefore tentative dates are included in the diagram to highlight that such change will
not occur within the programme’s lifespan.
69.
EQUIP-T will need to realise four intermediate outcomes in order to achieve its
outcome:
i.
Teaching and learning within schools must improve. Teachers are central
to this.57 Therefore EQUIP-T will enhance teachers’ professional standards
and capacity through improving the provision of in-service teacher education.
EQUIP-T will also improve the school’s learning environment by providing
supplementary reading materials and ensuring selected primary schools have
adequate water and sanitation facilities. Improved school leadership and
management is critical58 and so training and mentoring support will be
provided.
ii.
Greater participation and attainment of girls in primary school and transition to
secondary school is necessary to achieve gender equity. This will be done by
mainstreaming gender throughout programme activities and through
supporting specific interventions to empower girls, such as introducing girl
clubs, promoting adherence to codes of conduct and positive discipline.
Linkages between EQUIP-T and other programmes such as Education Sector
Budget Support (SBS), Global Partnership for Education (GPE) finance and
Public Sector Reform (PSR) programmes will be enhanced to strategically
contribute to gender equity based on evidence.
iii.
Better governance and management of the education system will be
required. The programme will provide training to education managers and
supervisors at council, ward and regional level. It will also strengthen
management structures and systems so that they provide support rather than
encumber schools. Decentralised EMIS will be strengthened so that education
managers and communities have school-level information available in a form
that they are able to use. In addition EQUIP-T will support UWEZO (on
information on actual educational abilities of children), Haki Elimu (on citizens’
rights to education and the extent to which government is meeting these
obligations) and other organisations that are working at district and school
level towards a more accountable education sector with a particular focus on
21
increased transparency.
These specific accountability work with be underpinned by wider
accountability interventions outside of this programme. This will include
focused engagement with Parliament’s education committee and more
general support through DFIDT’s Operational Plan to, for example Parliament
and civil society more broadly. This broader work intends to meet an
Operational Plan objective of building a more accountable state that responds
to people’s needs and helps Tanzanian citizen’s access and use information
on their services, entitlements and rights.
iv.
The programme will generate evidence on its approach and communicate
results to provide a convincing rationale in order that policymakers agree
with the approach and support the needs for its national scale up. In
order to be successful, the programme must implement a comprehensive
knowledge management and communications strategy. The programme will
include innovative elements and therefore must collect and disseminate
evidence on what works at the district and school level. This will be useful in
providing specific evidence to shift policy dialogue at national level and
complement our SBS support to the education sector.
70.
The central tenet of this theory of change is that in order to achieve better learning
outcomes in a sustainable manner a coordinated and multi-faceted programme is
required. The education sector has most of the building blocks but the challenge is
that the system does not meet the needs of the children. The government has plans
for improving the system as a whole but does not have sufficient funds or resources
to implement them. Funds that do reach the districts may not be spent on items that
are most likely to affect learning outcomes.
71.
EQUIP-T aims to work with the government to refine its approach in order to ensure it
is a cost effective model that can be affordably scaled up across the rest of the
country. Wherever possible, EQUIP-T will work through and with established systems
and processes as this is the only way that sustainability and ownership can be
ensured. In addition, it suggests that educational inputs alone are insufficient to bring
about change and that they must be accompanied by improvements in management,
systems and school-community relations.
72.
Service delivery is compromised by weak management and poor financial
management. In addition to working to address these issues within the programme,
EQUIP-T will also collaborate with other initiatives to address this and be successful.
Assumptions
73.
The EQUIP-T theory of change is predicated on the following key assumptions:
From activities to outputs:
 Districts are interested in being part of EQUIP-T
 Government accepts technical assistance at the regional and council levels
22
 Pre-service and in-service training are well-designed and can be effectively
delivered
 National-level allied institutions are receptive to support and willing to
change
 Regional, district and ward education managers are interested and
motivated to participate in EQUIP-T
 For Option 1 some activities (relating to wider management training,
technical assistance and support) will be delivered through other
programmes
 Districts freely share education and financial management information
 EQUIP-T is able to collaborate with other programmes such as the Local
Government Reform Programme
 Funds are available to support district-level quality focused innovations
From outputs to outcome:
 Regional, district, ward education managers and teachers change their
behaviour and put their new skills and knowledge into practice
 Trained head teachers, teachers and education managers remain in their
schools or districts
 Schools continue to receive capitation grants and other funds from the
districts
 There is a strong system for monitoring and challenge through civil society
organisations
 The demands of politicians, citizens and communities for changes in the
education system are acted upon
 Unit costs in education do not substantially increase
 Political elites and vested interests are not able seriously to disrupt the
programme
From outcome to impact:
 GoT, donors, civil society and the private sector continue to prioritise
education
 EQUIP-T is able to produce a cost-effective approach that will be attractive
to policymakers for national scale up
 Parents and guardians continue to be willing and able to send their children
to school
 Political and economic changes over the next 10 years do not prevent
achievement of the impact
Evidence underpinning the Theory of Change
74.
There is strong evidence that shows that investing in quality education will contribute
to the achievement of other Millennium Development Goals: poverty reduction and
increased equity of service delivery provision; reduced HIV/AIDS; reduced child
mortality59; higher uptake of contraceptives and family planning methods;60 improved
birth spacing; and stronger economic growth61.
75.
The evidence to support an investment in improving learning outcomes is strong and
has already been presented in the strategic case. The Theory of Change depicts a
23
comprehensive programme for improving learning outcomes and is grounded in an
assumption that no one intervention alone is sufficient to bring about the change
envisaged. The international evidence base on achieving better learning outcomes is
medium and growing, but insufficient and contradictory at present, and there is
probably insufficient attention to context in assessing the applicability of findings.
Following a review of literature of supply-side interventions to promote learning
outcomes, a recent paper concluded that there was no consensus on the best school
(policy) interventions to improve learning outcomes in developing countries 62. A
second study on educational achievement in the European Union also found that
there was little strong evidence that any of the following factors has a consistent
impact on achievement: the level of teacher education, the pupil-teacher ratio, the
characteristics of administration, or the facilities of the school.63 Until recently many
donors did not have improved learning outcomes as a specific impact of education
programmes and therefore evidence on what works has not been systematically
collected64. The right mix of interventions is as much a product of judgement in the
prevailing context as it is a matter of hard evidence.
76.
Globally there is a medium level of evidence base to support the need to improve
teacher quality and professionalism65 as the quality of the teaching can have a
significant impact on learning outcomes66 67. However the evidence in East Africa is
limited and not yet conclusive68. International evidence suggests that in-service
teacher professional development has a positive impact on student learning.69
Studies also offer evidence supporting the fact that teacher professional development
plays an important role in changing teachers’ teaching methods, and that these
changes have a positive impact on students’ learning. 70 A recent study in Tanzania
found that the main motivation for entering the teaching profession was job security. 71
Evidence from Sudan72 and Botswana73 also suggests that well-focused,
individualised in-service teacher training can change teachers’ attitudes, modify their
classroom behaviour and improve students’ learning. There is also increasing
evidence around the links between teacher pay and learning outcomes74.
77.
Improving teacher’s capacity alone is not sufficient. There is strong evidence that
leadership and management, particularly through a school based management
approach, is critical for effective teaching to take place75 76. Evidence from Zambia77
and Uganda78 suggest that investment in school management is one of the most costeffective methods to improve the quality of education. In Tanzania, District Education
Officers and school inspectors stated that head teachers who had completed a
management course were better at record keeping, statistics, finances and
community relationships than those that had not. They also found that the head
teachers were better able to monitor teachers’ performance and delegate power 79.
78.
In order to improve learning outcomes for all, there needs to be some specific
interventions to increase girls’ attendance at school. There is mixed evidence on the
links between improved water and sanitation/hygiene and girls’ attendance 80, which is
positive in Asian/Muslim countries, but is limited for Sub-Saharan Africa.81 However,
there are ‘girl-specific’ factors that make a difference and include (a) the posting and
retention of female teachers; (b) gender-sensitive teaching; (c) accessibility of
counsellors; (d) a safe school environment without the threat of violence and (e)
provision of science and maths camps.82 There is strong evidence that having female
teachers in the classroom influences girls’ behaviour and improves learning
24
outcomes, and can improve gender equity as the teachers act as role models for girls
and can help create a safer school environment.83 There is strong evidence that
conditional cash transfers can improve attendance and test scores 84. Furthermore,
evidence from Haki Elimu and the work of the Friends of Education network
substantiates the international evidence that sustained community-based campaigns
can promote girls’ retention and completion of school85.
79.
There is some, but not strong, evidence supporting a broad approach to improving
learning outcomes through interventions at a systems and management level. 86 There
is medium evidence that the transfer of responsibilities to the local level, as in
Tanzania, can build demand for effective local governance, and improve the delivery
of public services.87 There is limited evidence from Africa that indicates that changes
to teacher deployment policies can make a difference in filling hard-to-fill posts.88 The
Theory of Change believes that system change is necessary but also recognises that
there are programmes such as the Local Government Reform Programme and the
Public Sector Reform Programme which are already working to improve these
systems, and with which the new programme must collaborate if it is to be successful.
80.
Ensuring that there is community empowerment and parental involvement in schools
is supported by strong international evidence89. Within Tanzania, there is a medium
evidence base from Haki Elimu and UWEZO to show that citizen empowerment and
increased accountability can bring about parental awareness and demands for better
service delivery.90 However, the power dynamics at local levels91 are characterised by
patronage, a low level of villagers’ actual involvement in decision-making92, and a
local ‘consensus’ which is the agenda of the powerful. Therefore, communities mainly
try to influence things which are within their direct control: they do not challenge the
system itself.
81.
The evidence underpinning this programme varies according to the outputs but would
be classed as medium overall. The literature review has shown that there are a
considerable number of programmes that are implemented with similar activities and
outputs, but that are not assessing any causal impact. For this reason, activities that
intuitively lead to an output but for which there is currently only limited evidence will
be prioritised for robust monitoring and evaluation. DFID promotes evidence-based
planning and therefore must take this opportunity to develop research where there
are gaps, funding and disseminating operational research studies to broaden the
evidence base in order that future programmes are better able to justify links within a
theory of change.
C. What are the costs and benefits of each feasible option?
82.
This section provides an integrated appraisal of Options 1 and 2 against Option 0, the
“do nothing more” counterfactual The appraisal of the options is in four parts:
1. An institutional appraisal, to set the scene
2. A discussion of wider economic benefits.
3. An integrated appraisal, including economic, social and institutional factors.
4. An appraisal of the climate change and environmental impact of the
programme.
25
1)
Institutional Appraisal
83.
Education in Tanzania is a decentralised service. The Ministry of Education and
Vocational Training (MoEVT) has responsibility for policies, but implementation and
management is the responsibility of local government authorities, and performance
management is the responsibility of the Prime Minister’s Office Regional and Local
Government (PMO-RALG). Coordination between these different elements and levels
of government is a key challenge, complicated by the fact PMO-RALG is physically
located in Dodoma, 500 km outside of Dar es Salaam and distant from all other
Ministries.
84.
As a result there is no clear connection between policies, plans and budgets.
Despite the existence of an Education Sector Plan, annual budgeting is top-down and
incremental, rather than activity-based in line with policy objectives. Allocations for the
sector are determined through separate discussions between the Ministry of Finance
and the individual departments and parastatals involved.
85.
The Ministry of Education and Vocational Training (MoEVT) is responsible for
policy formulation, coordination, monitoring, setting standards, quality insurance and
quality control of the whole education system. It also retains management
responsibility for higher education, TVET and Teacher Training Colleges. The
Commissioner for Education is the chief advisor for all issues pertaining to academic
matters. The School Inspectorate’s responsibility is to guarantee adherence to set
policies, laws, regulations and standards of education throughout the school system.
There are inspectorates’ representatives at zonal level for secondary level and at
district level for primary level. The Chief Inspector reports directly to the
Commissioner for Education. MoEVT also retains responsibility or oversight for a
number of organisations some of which are of potential recipients of support under
EQUIP-T:

The Tanzania Institute of Education (TIE) is a parastatal organization in
charge of ensuring the quality of education in Tanzania at pre-school,
primary, secondary, and teacher training levels through curriculum
development.

The National Examination Council of Tanzania (NECTA) is another
parastatal organization with responsibility for the management of national
examinations and the award of official diplomas in primary, secondary and
post-secondary education (with the exception of Standard IV examination at
primary level and Form II examination at secondary level which are directly
administered by MoEVT).

The Agency for the Development of Educational Management (ADEM),
established in 1997, provides regular and systematized educational
management training for all categories of educational management personnel
in the education service. It has a semi-autonomous status and operates
under the responsibility of MoEVT Permanent Secretary.
26
These agencies have a mandate, but are criticised for being under resourced,
lacking capacity and having insufficient responsiveness to district needs
The
programme will support them through the districts – in the hope that this will not
only increase long term sustainability, but will increase responsiveness.
86.
Since the decentralisation of primary education in 1998 and of secondary education in
2009, the Prime Minister Office - Regional Administration and Local
Government (PMO-RALG) supervises and monitors management of pre-primary,
primary and secondary education by Local Government Authorities (LGAs). In
collaboration with MoEVT they conduct monitoring and evaluation of PEDP II and
SEDP II, and preparation of the Education Sector Performance Report. They also
play a prominent role in teachers’ management.
87.
Regional Education Officers (REOs), under the Regional Commissioner’s political
authority and the Regional Administrative Secretary’s administrative authority, have
responsibility for providing education guidance to districts, both for academic and
management issues. However, as a result of the disempowerment of the regional
government level REOs have largely become mere communication interfaces
between the central and the district levels, compiling reports and conveying directives
to district education officers. Nevertheless, in some instances they have voiced and
defended the interests of ‘their’ districts, for example during the scrutiny of districts’
budgets with the Ministry of Finance.
88.
Local Government Authorities (districts, towns, municipal and city councils) are
fully responsible for the management and delivery of both formal and non-formal
basic education services. Within the district administration, the District Education
Officer (DEO) and the District Secondary Education Officer (DSEO) are the
interface between primary and secondary schools and the central administration
(represented at regional level by the REO).
89.
About 62% of the budget for basic education goes to local government authorities.
However, with many funding streams centrally earmarked for specific purposes, in
reality Councils have very limited discretionary powers – and limited resources
(human, financial and otherwise) with which to carry out their duties. The system of
education grants to districts and schools remains an intricate and complex flow of
funds compounded by incomplete or delayed disbursement of budget allocations. On
top of a lack of locally generated revenue this means that districts are depend on
unpredictable funding flows from central government for virtually all their income. In
this situation planning and budgeting becomes a major challenge, with knock-on
effects for schools who consequently also suffer very low predictability of flow of
funds. Furthermore, as established in the Strategic Case, the allocation of resources
(both funding and staff) is geographically skewed towards wealthier and urban
districts. This is a substantial risk to the efficient resource use, and an issues that is
being addressed through the local government and public financial management
reform programme.
90.
A similar confusion of responsibilities also exists at district level, DEOs, for
instance, work for the Councils, but are appointed by MoEVT and are ultimately
accountable to PMO-RALG, whilst reporting to a myriad of local authorities: the
District Executive Director (DED), the Chairman of the Council, the ward councillors,
27
the MPs and the District Commissioner. This creates a complex web of reporting lines
and directives in which responsibility and accountability easily becomes untraceable
and the blame for poor performance can always be laid elsewhere.
91.
At a lower administrative level, Ward Education Officers (WEO), the administrative
body closest to the schools, are responsible for the coordination and monitoring of
education activities within the Ward. The Ward Education Coordinators, who are
usually former teachers, could provide a useful advisory and mentoring service, if only
the necessary organisational will and financial support existed to bring this about.
However, as things stand, the bureaucracy of education management tends to be
more of a burden than a support to schools.
92.
At school level, the management (including financial) is under the responsibility of
School Committees (primary level) and School Boards (secondary level). The
selection procedure of members differs. At primary level, members are selected by
the community – and therefore reflect local power dynamics. At secondary level,
members are selected by the head teacher and approved by the REO: members form
a close coalition with the headmaster. The quality of school management and its
relations with the surrounding community depends heavily on the headmaster’s
probity and management abilities, as well as the level of engagement of the
community.
93.
School Committees/Boards tend to reflect the dominant local power relationships
and have therefore not developed into instruments for improving governance or
providing channels for community voice. Public expectations of government schools
are generally low. Members of the elite tend to educate their children privately and the
middle class, which is usually vocal on such matters, is relatively small. Much of the
“public” criticism about low levels of education quality has come from donor-supported
CSOs. UWEZO’s work on standardised tests has provided a shock to the system and
Haki Elimu and other CSOs have succeeded in keeping the debate on education
quality alive within civil society, but the effectiveness of their advocacy on government
is uncertain. There is no strong tradition of an investigative press and stories in the
papers of failing schools are rarely followed through in a sustained manner.
94.
Option 1 works on the premise that the system is dysfunctional and results can be
effectively achieved at least in the short term through direct action with the schools
and relevant training institutions. It assumes that longer term more strategic change
will occur through sector dialogue, and work on public sector and local government
reform.
95.
Option 2 attempts to work with the systems and structures and to build the capacity of
organisations and clarify the relationships between them. There is an assumption
that by working ‘with the grain’ the system can be made to work in a way that is both
sustainable and replicable. There is already significant investment in the different
layers of accountability and management that currently yields very few results. The
assumption that will need to be tested is that with limited additional investment from
the project these bodies can be made to work together in an effective and sustainable
way. Given that the devolution process has stalled, and accountabilities are
fragmented, this is a higher risk approach.
28
DFID already invests in accountability programmes – and option 1 assumes that this
could continue. Option 2 ties the work on accountability more closely to service
delivery, which adds complexity to the programme, but may mean that the
accountability work is more focused and likely to generate tangible results
96.
2) Wider Economic Benefits and Potential Efficiency Savings
97.
The cost benefit analysis above has focused on a relatively narrow way of estimating
the economic benefits of the programme, based on increased future earning capacity.
In addition the potential for efficiency savings are potentially enormous. Whilst
inequity in resource distribution needs to be addressed, there exist large variations in
learning outcomes between districts with very similar levels of per capita income.
98.
The chart below shows the distributional inefficiencies which exist in the sector, which
were estimated from EMIS and UWEZO data. Districts which spend similar amounts
per primary student have very different reader pass rates (as indicated by the low R 2
measure). This measure also indicates that 80% of variation in reader scores can be
explained by council level and other factors, such as school management, while
teachers’ salaries, capitation grants and other school operating costs explain only
20% of the variation.
99.
For example, Mtwara Rural district and Rombo district each spend approximately
TSH 101,000 (£40.40) per student but achieve 13% and 46% reading test pass rates
respectively. The potential to raise inefficient districts to the average will most likely
yield considerable efficiency savings.
Standard II readers by recurrent expenditure per primary pupil per district
60%
50%
y = 1E-06x + 0.122
R² = 0.191
Standard II readers
40%
30%
20%
10%
0%
0.00
50000.00
100000.00
150000.00
200000.00
250000.00
Recurrent expenditure, per pupil , primary education, 2010/11
29
100. Wider Life time Benefits. Good quality primary education has a much broader
range of economic benefits through impacts on health and society. These are
probably at least as significant as the increased earnings, although much harder to
quantify and value – estimates of quantifiable gains are summarised in Annex 1.
This section therefore examines relevant international evidence of the wider benefits
that could be expected in Tanzania.
101. Fertility. There is strong international evidence on the relationship between schooling
and fertility. The Demographic Health Survey (DHS) 2010 showed that the total
fertility rate (TFR) for girls who complete primary education is 5.5, that for those who
do not complete primary is 6 and with no education it is 7. If we assume that of the
50% of the 125,000 female children who become successful readers by Standard III
at least half will complete primary education, (i.e. 62,500) then there is likely to be a
reduction of more than 30,000 births as a result of the project.
102. Future school attendance. The study by Ainsworth et al (2002) in Tanzania found
that mothers’ and to a lesser extent fathers’ attendance at school raises the
probability that their children of all ages will be enrolled in school. It is reasonable to
assume the EQUIP-T programme will have this inter-generational effect, i.e. result in
an increase in attendance in the next generation after at least 10 years of the end of
the programme. Taking the evidence that children of parents who themselves
attended school are 10% more likely to attend primary school and assuming this will
increase the number of years of primary schooling by 0.602years from the current
baseline of 6.02years, it is probable that each child bearing women will increase the
years of schooling of their children by 2.8 years (if we assume each mother has a
total fertility rate of 4.7). Hence the total number of additional years of schooling for
children of ‘EQUIP-T mothers’ will be approximately 81,000 or equivalent to 11,600
children completing seven years of primary schooling.
103. Raised agricultural output. Investment in human capital is a vital component of
economic growth and is related to both the duration of education and its quality. A
study of maize production in Kenya's Western Province concluded that: (i) each year
of schooling resulted in a 1.7 per cent increase in annual output93; (ii) schooling of
between one and three years had no effect on the output of farmers;(iii) increases in
output were associated with four years and more of schooling. There is also a
demonstration effect. If an educated farmer successfully tries out higher yielding
crops or new production methods, other members of his village observing this will
often copy the innovations and thus also achieve higher incomes.
104. Given the similarities between Tanzania and Kenya’s agricultural sectors and with
EQUIP-T being an education quality improvement programme, it is plausible to posit
that EQUIP-T can claim to retain students from year four onwards and thus contribute
to raising agricultural output. If we assume EQUIP-T will raise the average years of
primary schooling by 0.70 years and given a year of schooling results in a 1.7%
increase in annual output, then it is probable that EQUIP-T will raise output by 1.19%
(1.7 x 0.70). If we take the GNI per capita value of £325 (WB, 2010), then per annum
productivity will rise by approximately £4. Assuming that 25% of 55,000 PSLE
graduate will go into agriculture then per annum total output will rise by approximately
30
£55,000. If we further assume average working life of 30 years then the total
additional output as a result of EQUIP-T is estimated to be £16.5 million.
105. Reduced under-five mortality. According to Cochrane, Leslie and O’Hara (1980)
one additional year of schooling for mothers in low-income countries (which included
Kenya and Sudan) is associated with a 5-10% reduction in the likelihood that their
children die before reaching the age of five. The Tanzania Demographic and Health
Survey 2010 estimates that the under-five mortality rate in Tanzania stood at 81
deaths per 1,000 live births in the period 2006-2010. Assuming that the average
years of primary schooling increases as a result of EQUIP-T, which results in the
mortality rate falling to 71, it is reasonable to assume that with a total fertility rate of
4.7 and 90% of female readers going on motherhood, just over 700 under five-year
old children will be saved as a result of this programme.
106. Enhancing district performance Option 2 will build capacity of councils to plan and
delivery all services, as such there may be significant additional benefits in health,
water, agriculture and roads.
3)
INTEGRATED APPRAISAL OF OPTIONS 1 AND 2
107. Option 1 and Option 2 would have the same overall budget but the funds would be
spent in different ways. Option 1 would differ from Option 2 in that it would not aim to
strengthen (i) council level management of education (Output 4) or (ii) local level
accountability of schools and education officials through School Management
Committees (part of Output 5) and would thus (iii) need fewer technical programme
staff. The resulting savings of £10.6 million (20% of total costs) would be invested in
increasing the number of councils covered by teachers’ professional development
and capacity building, school management and leadership, better school learning
environments and girls’ participation in school. The number of councils covered would
go up from 20 to 24 districts and the target number of Standard II readers would
increase from 231,250 to 277,500.
108. These differences between the two options may be summarised as follows:
Table 4. Comparison of Option 1 and Option 2
Districts covered
Target no of Standard II readers
Option 1
24
277,500
Option 2
20
231,250
109. Option 1 is likely to increase the number of Standard II readers in the short term but
31
the changes brought about (e.g. improvements in teachers’ professional development
and capacity, school management and leadership) are unlikely to be sustained for as
long as those brought about through Option 2, which focuses explicitly on
strengthening of education management systems and local level accountability.
110. Option 2 is likely to have benefits in broader district management and other elements
of service delivery. The better use of government’s own development budget should
increase fund availability for essential capital projects and may affect efficiency
savings in other elements of service delivery.
111. In terms of the model, if all 277,500 students under Option 1 were to learn to read the
amount by which Standard II readers’ wages would have to go up per year would fall
from £14.60 to £12.17. However, to achieve this number of readers we would have to
assume that schools would continue to perform at their EQUIP-T levels for 5.8 years
beyond the end of the programme. This seems implausible without stronger
management and accountability systems. However the assumption for Option 2, that
they would continue to perform for 7 years beyond the end of the programme, seems
more plausible because strengthening of council and ward level management
systems, school management committees, and other accountability measures, would
be an explicit aim of this Option.
Table 4: Comparison of Options 1 and 2
Model A
Wage increase per year for
EQUIP-T readers required to
‘pay for’ programme costs
Period beyond the end of
programme that benefits would
need to continue* to ‘pay for’
programme costs
Option 1
£12.17
7.0 years
Option 2
£14.60
5.8 years
* i.e. the number of years readers would need to continue with enhanced
capacity of teachers and head masters trained by EQUIP-T
Non-Economic Issues
112. The economic analysis above has demonstrated that the returns to the programme
will be positive. However the significant factor that is omitted from these arguments is
the fact that the benefit of the programme will be felt beyond the target districts on a
national scale. The programme will provide models of school improvement that will be
replicated throughout the country. Thus the payback will be felt in a far wider range of
schools and communities. The relative sustainability of the Options thus becomes
important and here we have to look to non-economic factors.
113. On institutional grounds, there are two major reservations about Option 1.
i.
By concentrating on education issues, Option 1 fails to address the key
institutional constraints outlined in the Institutional Appraisal above. It
assumes that a lack of organisation and funding can be ignored and that the
superstructure of education management can be left to sort itself out. This is a
high risk assumption, because unless there are systems in place to ensure
32
fund flows, to maintain appropriate staffing levels and to set standards and to
monitor against them, school-based interventions are unlikely to be sustained.
Even the most technically excellent teacher and head teacher training
programmes, teaching and learning materials provision or infrastructure
projects, will have limited success in transforming schools if delivered in
isolation. The whole system has to develop the strength to sustain change.
ii.
Option 1 concentrates on straightforward supply side technical responses to
problems that require more subtle and politically nuanced responses. In
particular it pays insufficient heed to demand side factors in school
improvement, through community involvement and civil society advocacy. It
also pays insufficient attention to the importance of raising awareness and
expectations and the value of the consumers of educational services holding
service providers to account. The lack of accountability has a significant
negative influence on the performance of the education system and a quality
improvement programme that fails to include measures aimed at facilitating
voice and improving accountability is unlikely to affect the responsiveness of
service providers to public expectations.
114. Option 2 would incorporate the educational interventions of Option 1, but supplement
these with measures aimed at improving management, leadership and governance.
The primary focus would be the provision of education by the council and the factors
that ensure effective and efficient delivery. This calls for a more integrated approach,
which recognises that school improvement is a process that is responsive to a range
of factors, some of which are internal to the school and some to the operating
environment and the system as a whole. Major features of this operating environment
are the availability of resources, the effectiveness of education management
structures and systems and the extent to which they support or hinder schools. Both
the efficiency and effectiveness of the government superstructure are therefore
important determinants of education improvement and it is the attention paid to these
factors that clearly distinguishes Option 2 from the more narrowly focused approach
of Option 1.
115. Under Option 2, in addition to specific education quality interventions aimed at
teachers and head teachers, the programme would work with the management and
accountability systems that currently exist but contribute little to education outcomes:
This should result in a council that is able to deliver and sustain effective education
services – and operate within a better functioning education system
 work at the ward and council levels to improve planning, budgeting,
procurement and financial management;
 seek to reorient organisational structures and systems in line with strategic
plans and to make them fit for purpose;
 support more effective school supervision, performance management quality
assurance;
116. Because this is a council-focused approach, which recognises the diversity of
circumstances in which councils operate, the approach will be responsive to different
councils’ particular needs for improved service delivery. It will allow more flexibility to
33
respond to climate change and environmental pressures and it recognises that
councils face competing needs and are subject to conflicting pressures, not all of
which fit neatly with the objectives of this programme.
117. It is anticipated that various slightly different models will develop. For example, many
councils, particularly those in remote areas, have problems attracting and retaining
staff. Under Option 2 councils might use the flexibility of a new pay and incentives
strategy to trial innovative approaches to address this major source of inequity. The
lack of a simple formula for improving education delivery is likely to complicate the
process of expansion, but by recognising that no one size fits all, the chances of
sustainable scale up will be improved.
118. Option 2 recognises that demand pressure from education consumers is also
important. It would work with communities and civil society organisations to improve
accountability, through advocacy and working with school management committees
so that they are able to assist schools to improve the quality of education and
enhance the value of education amongst parents. In this way, the communities will
help to increase attendance and reduce the number of dropouts. Furthermore, the
school management committees and activities to increase accountability should lead
to increased efficiency because resources will be better used.
119. An integrated approach, combining school-based work with teachers and head
teachers with work to improve governance structures and systems is ambitious. It is a
high risk and slow process. It is also a process with few “quick wins”. In order to be
effective it will have to challenge established ways of doing business and it will run up
against competing demands and vested interests. Political engagement, both within
and outside government will be a vital component of the programme. An
understanding of power relations, which will vary from one council to another, will be
essential. Without political will at all levels, the programme will fail to make progress.
120. Option 2 recognises that there is a greater role for regional governments to play,
which is currently lacking, in coordinating district concerns and advocating on their
behalf with central government. It is envisaged that under Option 2 technical
assistance would be located at the regional level, and thus the programme aims not
only to reap the benefits of geographical proximity to the selected 20 councils, but to
work with the regional governments to expand the scope and effectiveness of their
constitutional role.
121. Option 2 also recognises the importance of PMO-RALG in bringing about sustainable
service improvement and will thus work with a wider range of central government
bodies than Option 1, which is more narrowly focused on MOEVT and its para-statals.
Some technical assistance will therefore be required to support PMO-RALG and this
need is reflected in the siting of programme management in Dodoma.
122. Tackling the big issues of geographical disparities in resource allocations or teacher
career structures cannot be achieved by improving management at the council level
alone.. Teachers’ terms and conditions are entwined with wider civil service issues
and it is difficult to identify which part of government is ultimately responsible.94 These
big issues are both technical and political. They can only be addressed at a national
level and are beyond the scope of the EQUIP-T. The programme will collaborate with
34
DFID budget support policy dialogue and the national reform programmes (see Table
5 in the Management Case for greater enunciation of the fit with other DFID
programmes)
123. The unique nature of the political and cultural context makes it difficult to point to
evidence that any particular combination of interventions will work. Finding definitive
evidence that a politically sensitive integrated approach will produce results is
challenging. There is evidence from different contexts that various aspects of the
Option 2 approach have beneficial effects.95 96 However, there are few places where
all aspects of the approach have been attempted. The best that can be said is that
there are indications that the model may be effective. In Nigeria, the DFID-funded
ESSPIN programme has had some notable successes in equally challenging
circumstances. However the evidence from elsewhere is weak, because it has not yet
been fully evaluated.97
124. The paucity of this knowledge base makes it particularly important that the
programme should generate its own evidence of what works and what does not.
When the aim is to leverage Tanzanian Government funds to take programme
models to national scale, rigorous monitoring and evaluation will be required. The
importance of M&E and operational research is underlined by the inclusion of a
programme output relating to the generation of evidence and communication of
results. In addition, the EQUIP-T will use impact evaluation to assess the
effectiveness of this approach overall; which will be used as part of the sector policy
dialogue, as well as for improving the planning for phase two of EQUIP-T.
4.
CLIMATE CHANGE AND ENVIRONMENT APPRAISAL
125. The programme offers significant opportunities to a) build climate preparedness into
the delivery of education in Tanzania and b) to tackle climate change and
environmental degradation through education systems and structures. The
programme is likely to have limited direct impact on the environment and will not
introduce policies or processes that are environmentally unsustainable.
126. It is well documented that climate change and environmental degradation impact the
poorest the first and hardest. They result in degreased attendance at school and will
undermine progress against each of the MDGs. Conversely, education offers
significant opportunities to build resilience to climate change and reduce
environmental degradation.
127. The immediate challenge is to ‘climate proof’ the education system through
assessment and planning for imminent risk (adaptation). The longer term challenge is
to develop an education system that equips learners with the requisite skills,
knowledge and attributes to deal with future challenges.
128. The programme will deliver results on climate and environment in the following ways:
a) Build on a climate vulnerability risk mapping to be undertaken prior to
programme start up to inform long-term planning. The risk assessment will
consider:

Vulnerability to extreme events

Likelihood of displacement and migration
35

Impacts of seasonable variability on attendance and need to shift timing of
education schedules to changes in e.g. agricultural calendars
b) Consider how Tanzania’s Environmental Education Strategy; should be
incorporated in the project. This will include:

Costing of environmental strategy

Operationalize the strategy

Implement specific components of the strategy in the 20 councils
c) Deliver improved access to water and sanitation – improving school attendance
by girls but also providing clean water to the local community (where potential
exists). Options will include:
 Rain water harvesting
 Improved water storage facilities
 Improved sanitation facilities – using technologies most adapted to the local
needs (environmental and cultural)
d) Where councils are working on incentives to attract staff to hard to fill postings,
the programme will explore whether provision of renewable energy – such as
solar electricity will facilitate recruitment.
129. The programme presents limited and manageable risks to the environment and
climate change. Much of the activity will involve training. Any activity requiring the
movement of people and the use of fossil fuels will have some environmental impact,
but it is expected that much of the training will be school-based and will avoid the
need for transport. As there is an element of TA in the EQUIP-T programme however,
there will also be a need for the management team and short-term consultants to
travel extensively by road and air and this will have some negative impact through the
use of polluting fuels. In addition, it is proposed to support districts with the provision
of vehicles/motorbikes in selected districts to determine how best to support key M&E
activities such as school inspections. Those will need to be taken into account.
130. The programme will not involve the construction of classrooms or significant amounts
of infrastructure, but it will fund small-scale water and sanitation projects to test the
impact of such provision on school quality and girls’ attendance. The provision of
latrines, where none are currently available should be beneficial to the environment.
Care will be taken to ensure that latrines are sited to avoid affecting the sources of
water. The conservation of water is of particular significance in a country with a
chronic water shortage. The provision of water points will therefore take into account
the need for management of the water table and the risks of depletion.
131. The purpose of the programme is to improve the quality of schools. In part, this
involves making schools cleaner, more stimulating and more purposeful environments
for learning. It also involves teaching children about their surroundings. A prime aim is
to help children to become literate and numerate earlier so that they develop a better
understanding of the world about them. One of the teaching modules to be developed
is in primary science, which provides the opportunity to influence the curriculum by
introducing elementary lessons on environmental management and climate change. It
is well documented that children with a higher level of scientific education have
increased capacity to improve the management of natural resources and better
prepare for climate change.
132. Unlike budget support, where it is not clear what funds will be spent on, programme
36
expenditure will be more predictable and will not be fungible. Funds will be
earmarked for specific purposes. Initially funds will not be channelled through
government systems and therefore risk being for other things, such as the provision
of infrastructure, which might have more significant environmental implications.
Moreover, most of the activities to be funded under the programme are not currently
taking place to any significant extent, so there will be very little substitution effect on
government finances.
CONCLUSION
Returning to the theory of change, both projects will cover the top set of inputs – in blue
and orange – and indeed four more councils could be covered in option 1. Option 2 would
provide the bottom (green) inputs as well – whilst option 1 would assume that they would
happen through other channels. The key issue really is whether it is better to focus on
greater coverage in the short term, or a more comprehensive and integrated approach.
Option 2 reflects the complexities of the current system and the political and institutional
realities This means that it is more complex and will deliver results over a longer time
frame and on a broader range of issues.
On the cost benefit analysis the decision is quite finely balanced between option 1
generating more results but with high risk to payback over a moderate period, and option 2
that generates slightly fewer results initially but has more chance of sustaining these into
the medium and long term
The government of Tanzania have been very explicit that they do not want more traditional
projects – as there have been so many in the country that have failed to delivery lasting
impact – including in the education sector The complexity of option 2 is a risk but this is a
large investment which is effectively encompassing several moderate sized projects. This
approach is the one that the government are supporting because of the greater chance of
lasting impact and integration within their systems
D. What measures can be used to assess Value for Money for the
intervention?
133. EQUIP-T will track the following measures to ensure and monitor value for money:
Economy
Monitor
Responsibility
Unit costs benchmarked against national and
regional norms, including:
i.
Consultants’ fees
ii.
Staff salaries
iii. Operating costs of TRSUs(rent, vehicles)
iv. Supplementary readers
Unit cost of INSET per teacher (currently
estimated at £235)
RTSE, PMORALG, MoEVT
Managing
Agent / MoEVT
Efficiency
Unit costs of providing schools with clean drinking Managing
water and sanitation (£21,87598)
Agent / MoEVT
37
Unit costs of training council managers and Managing
supervisors estimated at £454
Agent / MoEVT
Unit costs of training SMCs
Effectiveness
The number of Standard III students passing the
UWEZO test for Standard II readers (by gender).
Currently 23%; predicted = 50%.
The number of boys and girls (i) passing the
PSLE and (ii) going on to secondary school.
Currently PSLE pass mark of 53.5% (2010),
predicted 55.5%.
The unit cost per reader (Standard III students
passing the UWEZO test for Standard II readers)
- currently estimated at £152 for the preferred
option.
The overall costs of the overall model developed
to check that it is affordable and offers Value for
Money
Managing
Agent / PMORALG
UWEZO
MoEVT /
NECTA
UWEZO
Managing
Agent / DFID
134. A major focus of EQUIP-T will be improving allocative efficiency and value for money.
It will leverage significant benefits from the sunk costs that government is already
investing in the system but without receiving sufficient benefits.
135. EQUIP-T will explore which approaches are most cost effective to key questions such
as optimal approaches to supervision and approaches for teacher attraction and
retention, particularly in rural and remote areas.
E. Summary Value for Money Statement for the preferred option
136. Option 2 represents the best value for money. It is expected to achieve the following,
which would be sufficient to justify investment in the programme:
137.

extra earnings of the increased number of primary school ‘passers’ (students
who pass the Primary School Leavers Exam (PSLE) of £38/year, which would be
sufficient to “pay for” the EQUIP-T programme.

efficiency savings due to lower unit costs of students learning to read (i.e.
schools will teach more students to read for the same cost99), sufficient to justify
the costs of the programme.
It is also more likely to have greater and more sustainable impact
138. In addition, a range of broader impacts on health, women’s empowerment and other
aspects of development have been shown to result from primary education which
have not been included in the cost benefit analysis.
38
39
3. Commercial Case
<removed>
40
4. Financial Case
A. What are the costs, how are they profiled and how will you ensure accurate
forecasting?
139. The maximum size of the programme is £60 million over four years 2012/13 – 2015/16.
This includes all related administration costs.
The breakdown of this is as follows:
EQUIP-T Budget
(Constant GBP
2012)
Output 1:
%
Share
24%
Enhanced
professional
standards and
capacity of teachers
Output 2:
Enhanced school
leadership and
management skills
Output 3: Greater
girls participation in
a more sustainable
and conducive
learning
environment
Output 4:
Enhanced
management
systems and
capacity at all levels
Output 5: A more
transparent,
accountable and
responsive system
to citizens and
communities
Output 6: Robust
evidence on
approach and
results effectively
communicated
Programme
Management
Total
8%
18%
14%
18%
2%
15%
100%
140. The budget for the proposed activities/interventions is indicative, as these will be
developed during the inception period of EQUIP-T once the Management Agent has
been selected. However, the key actions under each output are set out below to give
an indication of the interventions planned.
41
Table 5: Indicative programme activities
Output 1: Enhanced professional standards and capacity of teachers

INSET Improvement (particularly in relation to the teaching of reading in the early grades)

Support to TIE to review and improve curriculum and standards framework for pre-service teacher
education

ELT for teachers for transition to secondary

Supply of contract teachers in selected under-served districts

VSO and British Council expertise in professional development and English competencies

Provision of learning materials e.g. supplementary readers
Output 2: Enhanced school leadership and management skills

Head teacher and Deputy HT training in professional leadership, budgeting and accounts, planning,
assessment, HR management, community engagement)

Support to ADEM to Review and revise MLR

Capacity building fund
Output 3: Greater girls participation in a more sustainable and conducive learning environment
 Mainstreaming gender in all activities

Student clubs and empowerment training for girls

Innovative gender initiatives

Code of conduct/positive discipline

Water and sanitation within primary schools

Climate Initiatives
Output 4: Enhanced management systems and capacity at all levels
 Training of district education managers and supervisors in planning, budgeting, human resources,
monitoring and supervision (e.g. ADEM)

On-going professional mentoring and support by ward and district and regional education
department supervisors and advisers

Strengthening of systems in line with PFM and PSRP recommendations

Implementation of decentralised EMIS including hardware and training at district and school levels

Strengthening inspection and supervision systems and capabilities (including training and travel
allowances)

Liaison with PMO-RALG and local government reform programme
42

Rehabilitation/strengthening of support services e.g. TRCs

Liaison with MOEVT and PMO-RALG on issues such as salaries, incentives and teacher
deployment

Support to national Service Delivery survey
Output 5: A more transparent, accountable and responsive system to citizens and communities

Support to the UWEZO dissemination strategy

Training of SMCs – this would include the need for girls’ attendance and sensitisation of alternative
forms of discipline

Support to Haki Elimu

Fund for other NGO/CSO/non state actor

Develop and implement communications strategy

Evaluation and research

Communicate and disseminate findings and lessons to neighbouring districts and nationally possibly
through meetings, publications and exposure visits

Contribute to policy dialogue on key issues such as teachers deployment, incentives, salaries,
public financial management, assessment and examinations
Output 6: Robust evidence on approach and results effectively communicated
 Independent Impact Evaluation commissioned, utilising learning and service delivery surveys

Operational Action Research embedded into council level activities to test ‘what works’.
There needs to be a more explicit discussion of how much will go to each of the accountable
grant recipients.
B. How will it be funded: capital/programme/admin?
141. The full amount will be drawn from the DFID Tanzania programme resource allocation,
and has been budgeted for in the DFID Tanzania Operational Plan covering the period
from 2011 to 2015. We will seek approval for expenditure extending into years beyond
the current spending round.
C. How will funds be paid out?
142. As outlined in the Commercial Case there will be the following types of recipients of
funds:
 The Management Agent. The majority of EQUIP-T funds will be paid by DFID to the
Management agent. The majority of this will then be passed on to the organisations
that they contract and fund to provide goods and services (including national
43



Tanzanian education organisations like TIE, ADEM and NECTA). A small proportion
will be retained by the Management Agent to cover programme management and
technical assistance costs.
Accountable Grants. For the Service Providers and CSOs with whom DFID
Tanzania will sign an Accountable Grant under the EQUIP-T programme. Two CSOs
(Haki Elimu and UWEZO) are receiving funding through the AcT programme. Funds
will be paid direct from DFID quarterly in arrears until late 2013 for these and the
additional British Council/VSO activities. After this date, both CSOs will be funded via
the Management Agent. Whether to continue direct payment from DFID to British
Council/VSO will be determined following a review of progress and the feasibility of
routing the funding via the Management Agent.
Service delivery indicator survey There may be a contribution to a joint donor fund
to support a service delivery indicator survey (this will form the baseline for monitoring
several key indicators).
Councils. In the latter years of the programme, it is expected that funds will be paid
directly to council governments.
D. What is the assessment of financial risk and fraud?
143. The Management Agent. Before a contract is awarded DFID will conduct full due
diligence to ensure adequate checks and balances are in place. The management
agent itself will also conduct due diligence checks before disbursing funds to its various
partners. In addition to annual audits, high risk areas of expenditure such as
procurement and workshops may also be subjected to additional spot-checks to verify
their legitimacy.
144. Partners with Accountable Grants. Due diligence will be carried out for each CSO
and partner with whom DFID intends to sign an Accountable Grant to provide a full and
up to date assessment of financial risk and fraud in line with DFID’s commitment to
undertake more consistent and in depth due diligence of all partner organisations within
the new due diligence framework currently being developed and expected to be in
place by the time these Accountable Grants are signed. We anticipate, however, that
the level of risk is likely to be comparatively low given the strong internal systems of the
selected NGOs, their track record and previous relationship with DFID.
145. UWEZO: A system-based audit of the financial management systems of Twaweza,
UWEZO’s parent organisation, was undertaken by SIDA in May 2011 and concluded
that system for financial management and control at Twaweza are strong. Twaweza
has zero tolerance for corruption, theft, fraud and dishonesty and is subject to an
annual external financial audit and, also annually, to an internal audit by HQ (HIVOS
Netherlands). To help mitigate against opportunities for misuse or fraud by partners,
Twaweza also uses cash on delivery service agreements, more akin to payments for
goods and services successfully delivered, rather than the traditional focus on inputs
against agreed budgets.
146. VSO: The final DFID PPA evaluation of VSO in November 2010 concluded that: “VSO
has demonstrated good Value for Money in respect to its procurement, practices and
44
management of fiduciary risk – it is a cost-efficient organisation.” This was reiterated by
the March 2011 PPA Due Diligence Report undertaken by KPMG on DFID’s behalf,
which concluded “No Critical financial or operating weaknesses were observed during
our Assessment.”
147. Councils. This delivery channel will not be utilised in the first two years of the
programme because the assessment of financial risk and fraud deem it to be
untenable. When circumstances permit this to be reconsidered a full and up to date
assessment of financial risk and fraud will be conducted in line with DFID’s rules and
procedures.
E. How will expenditure be monitored, reported, and accounted for?
148. Full details will be provided in the Accountable Grants signed with CSOs, and in the
contract signed with the Management agent.
149. Annual audited accounts, six monthly financial statements and budget forecasts will be
required for each organisation receiving DFID funding. Further funding will only be
provided once prescribed milestones have been met and previous funds accounted for.
Agreements with partners will include an exit strategy where fraud is identified or the
expected results are not being achieved.
150. The Management Agent will compile annual assets returns for DFID on behalf of those
receiving DFID support. Asserts purchased by the Management agent and other
institutions will be similarly disposed of at the end of the programme, in agreement with
DFID.
45
5. Management Case
A. What are the Management Arrangements for implementing the intervention?
National strategic coordination and oversight
151. EQUIP-T will contribute to the delivery of the Government of Tanzania’s education strategy
through dedicated inputs at regional and council level to enable the funding and expansion
of existing policies and plans, rather than establishing new parallel education strategies. It
will therefore be essential that the programme is managed in a way that ensures full
alignment with, rather than duplication of, existing structures and programmes (see Table 5
for a full explanation of DFID’s various mechanisms of support to the education sector).
152. DFID is an active participant in all levels of the harmonised dialogue structure, which
regularly brings together the Government of Tanzania and Development Partners to
discuss policy issues and to monitor progress. The dialogue structure has three levels:
technical / sector level, cluster groups (that coordinate 4 clusters of sectors), and the top
oversight level, the Public Expenditure Review Main group.
153. EQUIP-T will be represented in the Education Sector Development Partner Group by DFID,
however there may be direct engagement of the programme in some of the technical
working groups.
154. The EQUIP-T programme itself will be overseen by a Steering Committee, composed of
representatives of the Government of Tanzania (PMO-RALG and MoEVT), DFID, the
management agents, and key implementation partners. They will meet annually in June to
assess progress and review the direction of the programme. The first meeting of the
steering committee will be in late 2012. This meeting will undertake council selection –
according to the proposed agreed criteria.
Table 5: DFID support to the education sector through various mechanisms
Issues
Resource
Allocations
Between
Primary
secondary and
tertiary
Between
districts (HR
allocation and
Formulae)
Discrepancy in
Pupil teacher
ratios
Situation
Primary sub-sector allocation is only
40% of budget and the trend is
downwards. Strong political
pressure to support student loans,
and to improve secondary school
performance
Discussions around equity make
little progress.
Political resistance to defining
‘underserved’
Formulae not followed and no
sanctions to have it implemented
DFID approach
Sector dialogue (push Primary
back to 50%, Maintain support
to secondary and address the
rapid increase in student loan
board)
Instrument
SBS
Rationalise formulae and
ensure implementation
Work with government on
improving PTR in underserved
districts; including focus on
female teachers.
GBS and SBS
dialogue.
EQUIP-T (Education
Quality Improvement
Programme
Tanzania)
Wide discrepancy in PTR between
schools with severe shortages of
teachers especially in rural areas
Strengthen pay and incentives
strategy
Sector dialogue Consider
SBS / GBS
Strengthened pay
and incentives
46
Public
Financial
management
Management
and
Supervision
Wage/NonWage
At primary level 85% expenditure is
on salaries
Capitation grant not fully released to
schools
Predictability
and timing of
funding flows
Resource flows to districts including
capitation grants often delayed and
only partially funded
District and
School PFM
Limited PFM focus on districts –
performance patchy.
Primary school management
capacity shifted to secondary school
Poor capacity for PFM at school
level.
District and
above
Division of responsibilities/mandate
between MOVET and PMO-RALG
not clear
capacity at Region and District
Ward and
School
Limited Head teacher training at
district level, through ADEM, but
resources insufficient for larger scale
Virtually no Ward level capacity
Teacher
capacity and
motivation
Training budgeted but not funded
for INSET
Lack of infrastructure
(accommodation and basic services
in remote areas act as disincentive
to relocate)
Teaching
resource
availability
Chronic shortages of basic materials
– books desks and other teaching
and learning materials
Accountability
Supervision and
accountability
for results within
different layers
of government
Civil society
Incomplete decentralisation and
separation of powers between
MOVET and PMO-RALG have
undermined accountability
“Power centralised few officials
District level supervision undermined
by inadequate resources
Civil society engagement in
education is increasing, although
capacity to hold schools to account
for poor results remains limited
additional resources for
underserved schools through
EQUIP-T
On-going work with POPSM
Ensure full payment of
capitation.
Demonstrate efficiency gains
associated with funding nonwage essentials
Prompt payment of capitation
grants to
schools. Performance tranche
and possible future earmarking
Broaden PFM dialogues and
activity to include district PFM
(with LGRP)
Specific component of PFM
project.
EQUIP-T to focus on building
management capacity in
schools and at district
if necessary
Dialogue on implementation of
responsibilities of ministries
engage more with PMO RALG
EQUIP-T to strengthen regional
and district capacity – and
possibly PMO-RALG
MDG Challenge fund
Work with ADEM to support
stronger management training
for Heads and WECs
Cash on delivery to explore
incentives
Increase in INSET training of
teachers at Primary level
Head teacher training
Cash on delivery pilot
Dialogue on payments for
arrears for promotions, and
progression
BAE monies provide books and
some desks. Capitation grants
(if paid) could resource school
Innovation fund experiment
with new resources
SBS dialogue to engage with
both MOVET and PMORALG
and address acting roles issues
Build capacity of regions,
districts and PMORALG to
deliver their mandates and
ability to supervise effectively
Support Uwezo survey, Haki
Elimu through Civil society
accountability project (ACT)
Ensuring CSO participation in
dialogue process
strategy
EQUIP-T
GBS and SBS
(Performance issue)
EQUIP-T
GBS and SBS
GBS PFM dialogue
PFM project district
component
SBS
EQUIP-T
SBS
EQUIP-T
SBS dialogue
EQUIP-T
MDG Innovation fund
SBS dialogue
EQUIP-T
MDG Innovation fund
Through PRAP
programme
BAE
SBS dialogue
Innovation fund
EQUIPT
SBS dialogue
EQUIP-T
Uwezo support
through EQUIP-T
On-going Twaweza
and HakiElimu
support
SBS dialogue
47
Parliamentary
Girls
Inclusion
Increasing political debate around
service delivery and demand for
accessible service delivery
information from MPs to allow them
to hold executive to account
New formation of the Education
Caucus
Government policy of gender equity
In reality parity at primary enrolment,
but Increasing inequity for girls and
they move through the system
Involvement
of non-state
providers
Very limited low cost private
schooling available
Significant informal
charging Government approach to
private sector ambivalent
Inefficient
and
outmoded
systems
Business and
societal
learning
needs are not
being met
English
language as
medium of
instruction in
secondary
schools
Limited resource or incentives to
innovate./ adopt new technology or
approaches
Policy of English language
instruction but both pupils and
teachers lack the language skills
for effective learning to occur
Commitment to increasing
information for parliamentary
committees
Parliamentary project
GBS and SBS
dialogue
Innovation project
Improve school management
and leadership
Enhance and teaching with
particular reference to potential
barriers for girls
EQUIP-T
Girls education
challenge (GEC) fund
Positive discipline and GBV)
Explore impact of specifics
such as WATSAN through
research
Understand incentives and
barriers to non-state schooling
Specific support through GEC
Girls education
challenge fund
SBS Policy dialogue
Innovation fund
Explore how new systems and
or technology can improve
quality or VFM of interventions
Innovation fund
SBS dialogue
Private sector programmes
dialogue focus on specific skill
development
SBS Education
sector dialogue with
private sector
programmes
Support to English language
training
SBS dialogue
EQUIP-T
Possibly innovation
fund
Council Selection Process
155. The criteria used to select the councils participating in EQUIP-T are crucial. There is
potential for the programme to have a significant impact on reducing gender and
geographical disparities in learning outcomes. If resource allocation, in terms of funds,
teachers and materials, becomes more equitable, children in the poorest districts will
benefit.
156. DFID and other donors are concerned about inequalities in inputs and outcomes between
councils, and so those selected will be in the bottom third – in terms of educational
attainment and financial resourcing. They will not necessarily be the very worst councils in
all the indicators since it is possible that there may be insuperable structural constraints to
substantive improvements, It will be important to work with motivated councils who have at
least some ideas and good practice to share.
48
The proposed criteria for council selection are as follows:
 High pupil teacher ratio
 Low PSLE / UWEZO pass rates
 Low female enrolment at secondary school
 Not a focal council for other major locally focused education project
 Clearly expressed commitment to engage and collaborate with the project
Involvement in other governance/ financial management reforms would be a positive factor
in selection as would evidence of high climate change vulnerability
157. The Steering Committee Plus will meet annually in September from 2013 for lesson
learning and to feed into the following year’s Annual Joint Education Sector Review (JESR).
The Steering Committee Plus will include all implementation partners, stakeholders,
representatives of regional, and school level participants and beneficiaries. The timetables
and remit of both committees will be closely aligned with the Education Sector Development
Partner dialogue structure to ensure coordination with wider sector activities and minimise
burden on the relevant Ministries.
158. There will be regular meetings between key DFID advisors and EQUIP-T at least every
three months. Formal engagement with other donors and with government will be through
DFID but the project lead will be expected to play an active representational role in
technical discussions with other donors, programmes , civil society and government
Programme Implementation
159. The Management agent (MA) implementing EQUIP-T will be selected through international
competition in accordance with EU/OJEU procedures. There will be a six month inception
phase during which staff will be recruited and much more detailed negotiation and planning
will occur. The project should be in a position to support planning processes in autumn
2013 – ready for the school year which mirrors calendar years and the financial / planning
year which runs from July to June.
160. The management structures and process of EQUIP-T will mirror and support national
structures. Technical and managerial support will be kept to a minimum and conducted to
ensure effective flow of funds to council level activity, project management and minimise
fiduciary risk.
161. Within the Local Government Reform Programme (LGRP) and the World Bank health
sector project there is a move to strengthen the advisory capacity of regions – as in a
country as large as Tanzania PMO-RALG is not able to effectively support all districts from
its Dodoma base. In line with this there is limited managerial and technical capacity at
regional level. The functions of this programme will be to support council level planning and
management and, in conjunction with the regional education officer and regional
49
administrative secretary, to monitor the implementation and results of council level plans.
162. Approximately four Regional Technical Support Units will be established to serve the
participating councils. Each RTSU will provide flexible, responsive technical support to the
regional authorities, districts and schools within its remit. The precise requirements – and
therefore the exact structure and staffing of each RTSU – will depend on the plans of the
specific districts, their individual needs and the mix of support being provided. The project
will implement national policies and will in general use pre-existing materials and
approaches. The core function of the RTSU will therefore be implementation support and
financial management. They will work in conjunction with the regional education officers
and PMO-RALG in monitoring progress. It is anticipated that advisory resources will be
required in primary education, management, evaluation, monitoring and financial
management. The management agent will determine the optimal way to deliver this to
ensure results and value for money, whilst retaining a flexible and responsive approach, for
example through some pooling of expertise across RTSUs.
163. Local government authorities are the main unit for planning and co-ordination in the
education system, (and for the delivery of other basic services). The objective of the
programme will be to get LGAs working more effectively. There will be support to the district
education officer to further develop its council education plan, and then to implement and
monitor it. In the first years of the project the fiduciary risk of funding districts directly would
be high, and therefore procurement of the key elements, such as training etc., would be
through the managing consultant.
164. In parallel, with the support to the DEO, there will be support to cross cutting LGA functions,
such as prioritisation and public financial management. In doing this it will work very closely
with the Public Financial Management Reform Programme (PFMRP) and with other
projects and activities supporting local governance By the fourth year of the project funds
will be allocated to the majority of districts against their plans (earmarked and additional).
165. The management structures and process of EQUIP-T will mirror and support national
structures. Technical and managerial support will be kept to a minimum and conducted to
ensure effective flow of funds to council level activity, project management and minimise
fiduciary risk.
50
EQUIPT MANAGEMENT AND COORDINATION STRUCTURES
Beneficiaries
participates
provides feedback
Districts
Schools
Teachers
Communities
Parents
Pupils
provides feedback
supports
advises
(through existing
mechanisms)
EQUIPT Oversight
reports
Steering Committee
Steering Committee Plus
DFID Tanzania
coordinates
decides
reports
National Education Policy Dialogue
Implementing partners
Government of Tanzania
Development Partners
Civil Society and other stakeholders
including…
Regional Authorities
District Councils
ADEM, TIE, NECTA
CSOs
UNICEF
participates
provides feedback
(through existing
mechanisms)
funds
contracts
advises
supports
reports
EQUIPT Project Management
National Coordinator
Regional Technical Support Units
51
166. The RTSUs will be responsible for drawing down the services of national institutions such
as ADEM, TIE and NECTA to meet the training and other needs of the districts they serve.
In the first years of the programme they will be responsible for direct procurement of these
services, but towards the latter years they will step back from this role and support districts
to directly procure services themselves.
167. The National Coordinator will also have financial management responsibilities and will be
co-located with the Dodoma Regional Technical Support Unit. The National Coordinator will
be responsible for managing the national elements of the programme.
168. The RTSUs, as EQUIP-T’s technical specialist leads, and the National Coordinator will
jointly liaise with PMO-RALG and MOEVT on a regular basis through the steering
committees, and where appropriate through involvement in relevant technical working
groups. The national coordinator will manage the grants to national organisations. There
will be a limited number of these, but they will include Haki Elimu and UWEZO. These
organisations are currently providing a critical function of advocacy and accountability within
the education system and are currently receiving support from DFID to implement their
strategic plans. They will continue to be funded as part of the EQUIP-T and will be
managed by DFIDT in the first year of the programme. Their accountable grants will have a
performance break point after one year to assess their performance and thereafter they will
be handed over for management responsibility to the management agent.
169. In addition, there are two organisations who are delivering specific support to improving
English language training in Tanzania; British Council and VSO. They will be provided with
an accountable grant to expand their support in pre-service and in-service English language
training for primary and the first year of secondary school. They will be funded as part of
EQUIP-T and directly managed by DFID in the first two years of the programme and will
also have their performance reviewed after one year and thereafter the management
structure will be reviewed.
170. There will also be a multi donor fund that will support regular service delivery indicator
studies to which the project will contribute.
171. Full terms of reference for the procurement of the Management Agents will be made
available in October 2012, at the beginning of the procurement process.
172. Significant flexibility it being retained around operational details. This is international, as
implementation plans will be a significant discriminatory factor between potential
management agents. It is also important that management agents have ‘ownership’ of their
delivery systems, and cannot claim that any failure to deliver results is because unworkable
management approaches are being imposed
Internal DFID programme management
52
173. The overall responsibility for monitoring the programme and ensuring it delivers results lies
with the DFID Tanzania Education Adviser, supported by the Assistant Education Adviser,
who sit in the Millennium Development Goals (MDG) team and reports to the DFID
Tanzania MDG Team Leader. There will, however, be strong links with the public financial
management advisor and with the public sector reform and social policy advisor to ensure
that the programme is consistently in line with the wider DFID reform priorities.
174. The Management agent through the National Coordinator will report to DFID on a quarterly
basis, synced with MoEVT/ PMO-RALG’s internal reporting calendar for schools and
districts, to facilitate the availability of timely, accurate data to inform management
decisions. In addition, there will be frequent informal dialogue as issues emerge.
175. The MDG Team Deputy Programme Manager will be the DFID project officer. They will be
responsible for all programme administration, including management of the accountable
grants in the first year and will ensure that DFID project cycle management is followed i.e.
financial reports compliance, administrative functions and audit requirements.
The project is in line with, and will contribute to key DFID strategies, such as the AntiCorruption and Value for Money strategies.
Exit Strategy Triggers
176. The main triggers for DFID’s exit strategy.




If there is evidence of consistently poor engagement from districts (for example
refusal or failure to share financial records) then DFID would withdraw from the
council (either moving to another council or reducing the total number of districts
involved in the programme).
If the RTSUs have no traction at regional or national level then the programme
would either be redesigned or closed.
If the INSET training and other programme activities fail to motivate teachers and
improve time on task and other key performance indicators then the programme will
be redesigned or cancelled.
If there is no government support or engagement in the project - as evidenced by
consistent shifting of human and financial resource from selected councils, nondisclosure of information and non engagement in discussion then project
cancellation will be considered.
B. What are the risks and how these will be managed?
177. The key risks and risk mitigation strategies are shown in Table 6 and the risk matrix below.
The overall risk is rated as Medium.
53
178. This is a complex programme, the reform processes are interlinked and to some extent
interdependent, and often influenced by changes in other programmes and government
policies. Change does not happen fast in Tanzania, and progress will not be uniform
Phasing and continual adjustment and communication with other programmes and
processes is going to be a crucial component of maintaining momentum, and minimising
the risks of a few bottlenecks or setbacks undermining the whole process. The interface
between Managing agent and the DFID office is going to be really important, and
challenging - given that, for other reasons it is envisaged that the project will be based in
Dodoma.
Table 6. Risks and Risk Mitigation Strategies
Risk
1. National government
(national- PMO-RALG
and MOVET) does not
fully accept/ buy in to
the project.
2. Regional
governments and
councils do not fully
accept/ buy in to the
project.
Probability
Impact
M
H
M
M
M
L
M
H
M
M
3. Fungibility versus
additionality
4. Insufficient teacher
motivation for
implementation
5. Ineffective
management and flow
of government funds
Mitigation
The programme reflects government policies
and was designed closely with them. PMORALG and MOVET were both consulted
extensively in the design and both would play
a role in EQUIP-T (including TA selection). A
Steering Committee will be established for
the project, chaired by the government and
dialogue will be maintained with the
government throughout.
The project will be demand-driven and will
address key priorities identified by the
districts, which participate. Districts will be
selected using clear and transparent criteria.
Regions will be involved in selection of TA to
work with them.
There is a risk of fungibility (i.e., that
governments will divert regular funds away
from project districts, with project funds being
used replace existing funds, rather than being
additional). This will be mitigated by regions
and districts being required to open up their
books, as a condition of participating in the
project. The project will work to improve PFM
systems and will have a good understanding
of the flow of funds at all levels.
In addressing the professional development
and skills of teachers, the project will be
addressing a key cause of teacher
demotivation.
The management agent will be responsible
for addressing local PFM issues and
facilitating engagement with national PFM
issues via sector dialogue. Funds to districts
will only be put through council governments’
54
6. Advocacy for
improved education
delivery is ineffective
M
M
M
H
M
M
H
M
M
M
7. Government does not
commit funds for
programme scale up
8. Planned efficiency
gains are not achieved
within the project
lifespan
9. Government reduces
its contribution to
primary education (real
terms)
10. Teacher attrition
financial systems once necessary PFM
strengthening has been completed.
Procurement risk assessment undertaken on
MOEVT and PMO-RALG.
The project will emphasise the collection of
evidence, including on cost-effectiveness and
affordability, and will ensure that all
recommendations used in advocacy initiatives
are evidence-based. Organisations bidding to
be the Management agent will be expected to
demonstrate a good understanding of political
economy in Tanzania and how advocacy
initiatives can be most effective. EQUIP-T will
link to DFID accountability and parliamentary
programmes. Other evidence-based
advocacy programmes have brought about
change (e.g. the World Bank on capitation
grants).
EQUIP-T will generate robust evaluative
evidence, develop a model, which is costeffective and affordable and will prioritise
communications and advocacy, based on a
good understanding of political economy.
There is still a risk that other factors will drive
policy, but the risks that this will affect scaleup will be minimised.
The Management Agent will be responsible
for keeping control over the costs and
demonstrating credible outcomes and VfM by
the end of Year 4, although full realisation of
efficiency gains may take longer than 4 years.
Government has done so in recent years and
there is a risk that pressures to spend on
secondary and tertiary education, and other
sectors will continue. This will be mitigated by
(i) generating evidence through EQUIP-T on
what can be achieved cost-effectively in the
primary education system and (ii) engaging
with/supporting SBS dialogue at the national
level and (iii) advocacy. There is increasing
political and public concern in Tanzania about
the poor quality of primary education and this
may offset pressure to reduce the budget.
The evidence on quality was generated by
UWEZO, using DFID funds and UWEZO
support will continue in EQUIP-T
Teacher attrition is a significant issue. This
will be addressed by motivating teachers,
through professional development and
ensuring that INSET training is provided to all
55
new teachers. But see risk 4, above.
The project will give a high priority to political
and economy analysis and understanding
and will ensure all political parties are
represented in selected districts. There may
have to be a trade-off between enhancing
equity and ensuring political support.
11. Vested interests
impede projects
M
L
Risk Matrix Summary
IMPACT
HIGH
MEDIUM
LOW
HIGH
MEDIUM
[1,4,7]
[2,5,6,8,10]
[3,11]
LOW
PROBABILITY
[9]
C. What conditions apply (for financial aid only)?
n/a
D. How will progress and results be monitored, measured and evaluated?
56
179. Monitoring and evaluation will take place at two levels: as an internal management process
and independently for and by DFID. EQUIP-T will have both a monitoring strategy and an
evaluation strategy - both will be finalised during the inception stage of the programme.
180. The monitoring strategy will include the National Coordinator producing six-monthly
reports that will be submitted to DFID. Annual reviews (AR) will be undertaken by DFID with
the participation of MOEVT and PMO-RALG. The annual reviews will assess progress
against outputs and targets described in the logical framework and workplans and progress
towards outcomes. Teams may include independent reviewers contracted by DFID.
Reviewers will seek feedback from key stakeholders and hold discussions with the
Programme Steering Committee.
181. An Inception Phase will lead to agreed work plans for the remainder of the first year and
subsequent 12 month periods. There will be break-points at the end of the Inception Period
and at each annual review, when DFID may withdraw support if it is not satisfied that the
programme is likely to achieve its objectives.
Action
National Coordinator
reports to DFID
(based on reports
from National
Implementing
Partners)
Inception Review
(Month 3)
Annual Review
Annual Review at the
end of Year 2
(To inform decision
on shifting to direct
funding of LGA and
to consider second
phase of project)
Table 7: Monitoring and Reporting
Method
By who/when
Six-monthly progress reports
National Coordinator –
including (i) a narrative report, (ii) within 15 days of the end of
analysis of progress against
the period.
logical framework outputs and key
performance indicators, and (iii)
expenditure report, with work plan
and budget for next six months.
Review of progress and of revised DFID, possibly involving
logical framework and detailed
independent reviewers, with
work plan and budget for
the participation of MOEVT
remainder Year 1.
and PMO-RALG.
Review of reports and
DFID and/or independent
expenditure surveys, discussions reviewers, with the
with the RCTSs, MOEVT, PMOparticipation of MOEVT and
RALG, and other key
PMO-RALG.
stakeholders and with the EQUIPT steering committee.
As for AR with input from an
DFID and an independent
independent evaluation team.
evaluation team, possibly
with independent reviewers,
with the participation of
MOEVT and PMO-RALG.
182. During elaboration of the Monitoring Strategy during the inception phase, a gender lens will
be applied to ensure that all routine will be sex dis-aggregated (e.g. including training and
57
community engagement statistics) and mechanisms established to ensure that girls and
women’s voices, especially from marginalised stakeholders be incorporated in beneficiary
monitoring. Explicit methods to monitor the issue of gender based violence and related
impact on girls’ education and empowerment will be identified and implemented.
183. The Evaluation strategy will include conducting research and studies on key aspects of
the programme. Resources spent on evaluation need to enhance accountability to the UK
public that (i) funds have been effectively utilised and (ii) inform future investment decisions.
Care needs to be taken that these needs are balanced with the wishes of the Tanzanian
government not to over proliferate research driven be external stakeholders, which may
have limited local traction or influence.
184. The sixth and final Output ‘Robust evidence generated on approach and results effectively
communicated’ has ear-marked resources and its implementation is embedded into the
Logframe through process orientated indicators. A key start-up activity done in tandem to
Inception will be the timely collection of baseline survey data and evaluation design to
enable the measurement of impact.
185. The overall evaluation approach will be in two distinct streams, (although data sources may
be multiply used where beneficial and possible):


A major Impact Evaluation independently commissioned with a robust counterfactual that tests whether the model ‘treatment’ package of quality interventions in 20
Councils impacted (i) student learning outcomes and (ii) key ‘proxy quality’ indicators
(e.g. teacher-pupil contact time, ‘mix’ of English and mother tongue instruction)
against a comparable control group of Councils. It will utilise national UWEZO early
grade reading and Service Delivery Indicator survey in a robust methodology led by
an experienced principal investigator,
Operational Research embedded in the programme implementation that tests the
processes and variants of reform, for example trialling approaches to encourage girls’
retention or teacher incentives to work in remote schools. This will be guided led by
emerging priorities and be led by project staff and counterparts in the focal areas.
186. Corporate DFID evaluation expertise will be sought to ensure that a robust, credible overall
design for the impact evaluation is in place and an able principal investigator identified.
SIEF evaluation funds will be applied for (if feasible to do so), but not relied upon.
187. Evaluation effort will be focused on key themes and topics that resonate with global
priorities that emerge from the extended literature and systemic reviews being conducted
regarding the education sector. This will be contextualised for Tanzania, for example comparative analyses of efficiency of different districts in terms of cost/Standard II reader
and cost/PSLE passer to feed into wider national policy debates. Evidence needs to
demonstrate the cost-effectiveness and affordability of the approach (es) developed, if the
intention that the programme can be scaled by government resources and / or a 2 nd phase
of development partner finance is to be realised.
It is intended to utilise both (i) a Service Delivery Indicator survey (SDI) and (ii) the
UWEZO survey data to collect outcome data on the number of girls and boys able to read
58
at Standard II level to inform the project baseline, and then repeat at two yearly intervals.
These are likely to be national surveys with oversampling in the EQUIP-T focal councils to
allow comparison with non-programme areas – the viability of this approach will be
validated prior to implementation.
Logframe
Quest No of logframe for this intervention:
59
Logframe
Quest No of logframe for this intervention:
PROJECT NAME
EQUIP-T - EDUCATIONAL QUALITY IMPROVEMENT PROGRAMME IN TANZANIA
IMPACT
Impact Indicator 1
Better learning outcomes,
especially for girls across
Tanzania
No of PSLE passers (B/G) in
(i) Nationally and
(ii) 20 EQUIP-T councils
Planned
Baseline
2012100
B(i)
G (i)
289.190
278,374
(ii) tbd
(ii) tbd
Milestone 1
2016
i) 70%
+55,00
0
Milestone 2
2018
ii) 70%
+55,00
0
Target
2020
tbd
tbd
Achieve
d
Source
NECTA
Impact Indicator 2
% of children (B/G) able to read
at Standard II level by Standard
III nationally101
Baseline
Planned
B 26.76
Milestone 1
Milestone 2
G 29.76
Target (date)
B 95
G 95
Achieve
d
Source
UWEZO
Impact Indicator 3
Number of children in Form 1-4
of secondary nationally (B/G)
and Gender Parity Index
Baseline 2012
Planned
Milestone 1
Milestone 2
B 1,010,473
G 873,799
GPI: 0.865
Target (date)
B
G
GPI: 0.95
Achieve
d
Source
Annual Basic Education Statistics for Tanzania (BEST)
NB/ The majority of logframe baseline indicators populated with 2011 BEST and other information sources, with some estimates for the 20
selected councils based on proportional coverage. These will be comprehensively updated and reviewed with more recent 2012/13 data, after
final selection of councils and further M&E design work.
60
OUTCOME
Outcome Indicator 1
Better quality education,
especially for girls
(Early grade literacy, time on
task, reduced dropout,
increased transition for girls),
and approach ready for
national scale up
No of children able to read at
Standard II level in Kiswahili and
English by Standard III/ Age 8 to
10 years in 20 EQUIP-T districts
(B/G)
Planned
Baseline
2012102
B:
G:
53760
59780
Milestone 1
Dec 2014
Milestone 2
Dec 2015
Target (date)
Dec 2016
B:extra G:extra
115,00 115,00
0103
0
Source
Baseline104
Outcome Indicator 2
Planned
B:
39500
Milestone 1
Milestone 2
G:
34160
Target (date)
tbd
tbd
Achieved
Source
Baseline 2010105
Outcome Indicator 3
Planned
Milestone 1
Milestone 2
10 hr 20 min (U:
10 hr 55 m; R: 6
hr 20 m.)
Parents willing and able
send their children to school.
Target (date)
25.6 (or 100%
increase)
Achieved
Source
SDI survey
Outcome Indicator 4
Baseline
Cost per reader in the EQUIP-T
GBP152106
Planned
61
Government willing to
provide funds to scale-up
implementation the EQUIP-T
approach across the
country.
Donors continue support to
the primary education sector
and emphasise quality
improvement.
BEST
Pupil/teacher contact time
(No hours/school week), split by
M/F teachers and urban /rural in
EQUIP-T 20 districts
Government’s political and
financial commitment to the
education sector sustained.
Achieved
UWEZO and BEST
No children transitioning to
secondary school (Standard VII
to Form 1)(B/G) in 20 EQUIP-T
districts (B/G)
Assumptions
Milestone 1
Milestone 2
Target (date)
Outcome results can be
achieved cost-effectively
and lead to an affordable
model government can scale
up.
20 districts
Achieved
Source
SDI Survey
Outcome Indicator 5
Government has credible plan
and commits resources to
expand districts using the
EQUIP-T components
Planned
Baseline
Milestone 1
Milestone 2
Target (date)
0
Interest to rollout
Verbal intention
to rollout
Costed rollout
plan approved
Achieved
Source
Government statements in Annual review dialogue and 2016/17 budget
INPUTS (£)
DFID (£)
Govt (£)
£ 60 million
INPUTS (HR)
DFID (FTEs)
1.5 FTE
62
Other (£)
Total (£)
DFID SHARE (%)
OUTPUT 1 (#)
Output Indicator 1.1
Enhanced professional
standards and capacity
of teachers
No of teachers who have
participated in in-service training
and are using the competence
based curriculum. (M/F)
Planned
Baseline
2011107
2052
Milestone 1
Dec 2014
Milestone 2
Dec 2015
Target (date)
Dec 2016
27,300
Achieved
Source
SDI Survey and UNICEF (2011)
Output Indicator 1.2
No of teachers integrating
students’ use of textbooks in
their lessons. (M/F)
Baseline
Planned
Milestone 1
Milestone 2
Target (date)
Unknown
27,300108
Achieved
Source
SDI Survey
IMPACT WEIGHTING (%)
30%
Output Indicator 1.3
No of teachers (i) receiving
English training , (ii) using
supplementary readers with their
students. (M/F)
Baseline
Planned
Milestone 1
Milestone 2
0
Target (date)
27300
27300109
Achieved
Source
Assumption
Teachers willing and able to
use new skills and
competencies in their
schools.
Trained teachers stay in the
profession.
Integrated approach is
necessary to improve
enrolment, transition, and
completion and pedagogy.
Causes of teacher
demotivation other than lack
of professional development
opportunities do not hinder
teachers in putting new
competencies into use.
RISK RATING
SDI Survey
INPUTS (£)
DFID (£)
INPUTS (HR)
DFID (FTEs)
Medium
Govt (£)
Other (£)
Total (£)
DFID SHARE (%)
# Output 1 will be reviewed in inception to determine how best to separate monitoring related to the English Language teacher training activities of British
Council/VSO. This may necessitate a separate output, expanding Output indicator 1.3.
63
OUTPUT 2
Output Indicator 2.1
Enhanced school
leadership and
management skills
Number of head teachers
tracking teacher performance,
split M/F
Planned
Baseline
2012110
Unknown
Milestone 1
Dec 2014
Milestone 2
Dec 2015
Target (date)
Dec 2016
4,000
Achieved
Source
SDI Survey
Output Indicator 2.2
No. of managers completed
education management training
(with certificate), split M/F
Baseline
Milestone 1
Milestone 2
Target (date)
Milestone 2
Target (date)
Assumptions
Better managed teachers
will be motivated to attend,
teach and provide effective
learning environment to their
students.
Planned
Achieved
Source
ADEM and Council training data
IMPACT WEIGHTING (%)
Output Indicator 2.3
No of DEOs/WECs tracking
Head Teachers’ performance
15%
Baseline
Planned
Milestone 1
Unknown
400
Achieved
RISK RATING
Council data
INPUTS (£)
DFID (£)
INPUTS (HR)
DFID (FTEs)
Medium
Govt (£)
64
Other (£)
Total (£)
DFID SHARE (%)
OUTPUT 3
Output Indicator 3.1
Greater girls
participation in a more
sustainable and
conducive learning
environment
Number of boys and girls
attending primary school in the
20 districts, over 90% of school
days
Planned
Baseline
2012111
Unkno
wn
Milestone 1
Dec 2014
Milestone 2
Dec 2015
Target (date)
Dec 2016
Parents allow and can afford
for their girl children to
transition to secondary
school.
Achieved
Source
BEST
Output Indicator 3.2
No. of schools implementing a
gender sensitive code of conduct
and positive discipline
Baseline
Planned
Milestone 1
Milestone 2
Target (date)
0
Achieved
Source
SDI Survey
Output Indicator 3.3
Baseline
Primary schools in selected
councils with access to safe
water and separate school
sanitation facilities for boys and
girls
6326.4112
Planned
Milestone 1
Milestone 2
Target (date)
or
3%113
Achieved
15%
Output Indicator 3.4
National environmental
education strategy costed and
prioritised nationally and
implemented in the 20 councils
Baseline
Planned
Milestone 1
Climate vulnerability risk
mapping has been
undertaken to inform the
district selection for
programme focus
Safe water supply and the
provision of separate
sanitation facilities will result
in increased school
attendance by girls
Climate change is
addressed as a cross-cutting
element of vulnerability
Source
BEST and SDI survey data
IMPACT WEIGHTING (%)
Assumptions
Milestone 2
0
Target (date)
10 (tbd)
Achieved
Source
RISK RATING
Medium
INPUTS (£)
DFID (£)
INPUTS (HR)
DFID (FTEs)
Govt (£)
65
Other (£)
Total (£)
DFID SHARE (%)
OUTPUT 4
Output Indicator 4.1
Enhanced
management systems
and capacity at all
levels
Number of districts that have
implemented education council
plans of sufficient quality.
Baseline
2012
Planned
Milestone 1
Dec 2014
Milestone 2
Dec 2015
0
Target (date)
Dec 2016
20
Achieved
Source
TBC
Output Indicator 4.2
No of districts using school level
EMIS data
Baseline
Planned
Milestone 1
Milestone 2
0
Target (date)
20
Achieved
Source
Annual ESPR and BEST
IMPACT WEIGHTING (%)
15%
Baseline 2010114
Output Indicator 4.3
Teacher absenteeism (% of
absent teachers per month and
estimated cost of teacher
absenteeism)
(No of authorised absences per
week) 115
Planned
Milestone 1
Milestone 2
Target (date)
13.9%
Estimated cost:
37.8 million USD
Source
DFID (£)
INPUTS (HR)
DFID (FTEs)
PMO-RALG and MOVET,
regional and councils willing
and able to support the
programme and improve the
flow of resources to districts
for primary education
Managers willing and able to
use new skills and
competencies to improve
quality of education.
Inefficiencies in national
systems (e.g., PFM, HR) do
not make change at council
level impossible.
Trained managers stay in
post in the districts.
Achieved
RISK RATING
SDI or council level data through EMIS
INPUTS (£)
Assumptions
Govt (£)
66
Other (£)
High
Total (£)
DFID SHARE (%)
OUTPUT 5
Output Indicator 5.1
A more transparent,
accountable and
responsive system to
citizens and
communities
UWEZO learning outcome
results accepted and influences
government budgeting and
reforms (e.g. transparent mass
dissemination of local fund and
teacher allocations)
Planned
Baseline
2012
UWEZO data
not accepted by
GoT
Milestone 1
Dec 2014
Milestone 2
Dec 2015
Target (date)
Dec 2016
recognised by
GoT and used
Achieved
Source
EQUIPT annual review dialogue and reviewer opinion on government policy and actions
Output Indicator 5.2
Annual UWEZO results (i)
disseminated and discussed with
communities and key council
leaders
Baseline
Planned
Milestone 1
Milestone 2
tbd
Target (date)
(i) 80%+ (ii)
influences
council plans
Achieved
Source
Annual UWEZO report records and annual review dialogue
IMPACT WEIGHTING (%)
Output Indicator 5.3
INPUTS (£)
Annual no. of schools /
communities Haki Elimu
sensitizes in 20 EQUIPT districts
and those reporting positive
impact on actual reform to
practices on teacher
absenteeism, gender and school
management.
DFID (£)
INPUTS (HR)
DFID (FTEs)
15%
Baseline
Planned
Milestone 1
Milestone 2
tbd
Target (date)
Assumptions
Advocacy is based on
evidence and a good
understanding of political
economy issues and is
sufficient to convince policy
makers to act on
recommendations of EQUIPT.
Politicians and SMCs able to
maintain pressure on policy
makers to sustain
improvements in primary
education.
Vested interests unable to
seriously impede
implementation of the
project.
80+ % reached
Achieved
Source
RISK RATING
Haki Elimu Annual Report and annual review opinions, specifics of impact measure tbd.
Govt (£)
67
Other (£)
Total (£)
DFID SHARE (%)
Low
OUTPUT 6
Output Indicator 6.1
Robust evidence on
approach and results
effectively
communicated
Coherent impact evaluation
incorporating service delivery
and learning data implemented
Baseline
Planned
Milestone 1
Dec 2014
Baseline in
place by end Y1
Milestone 2
Dec 2015
Mid-term results
presented
Target (date)
Dec 2016
Completed and
disseminated
Achieved
Source
Impact evaluation reports from principal investigator and surveys
Output Indicator 6.2
Routine monitoring completed,
based on an agreed logframe
Planned
Baseline
Milestone 1
Milestone 2
Target (date)
Logframe
finalised by mid2013
Annual progress
report 75% in
place
Annual progress
report in place
Final progress
reported
comprehensively
Achieved
Management agent annual progress reports
10%
Output Indicator 6.3
Operational research undertaken
and key findings effectively
communicated
Planned
Baseline
Milestone 1
Milestone 2
Target (date)
none
2 interim OR
reported
5 OR reported
10 OR reported
RISK RATING
Management agent and partner annual progress reports
DFID (£)
INPUTS (HR)
DFID (FTEs)
Access to government data
improves and is presented in
a timely manner.
Achieved
Source
INPUTS (£)
Government and 20 local
councils do not block survey
activities, implementing
partners agree schedule.
2015 elections do not block
field work.
Key operational research
topics can be identified and
are feasible to be
undertaken.
Source
IMPACT WEIGHTING (%)
Assumptions
Govt (£)
68
Other (£)
Total (£)
Low
DFID SHARE (%)
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Classrooms and School Effects on Children’s Educational Outcomes in Latin America’. School Effectiveness and
School Improvement, 12(4): 409-445.
41 Haki Elimu (2010), “How can communities make education better for their children?: A research report on the
role of the communities in improving education in Tanzania”
42 Haki Elimu (2010), “How to ensure Educational Success for Girls: They have the right to complete their studies”.
43 World Bank (2008a), “What Do We Know About School-Based management? Washington, DC: World Bank.
World Bank (2008b), “Guiding Principles for Implementing School-based Management Program”, Washington, DC:
World Bank (online toolkit).
44 Shultz, P (1993) Mortality Decline in the Low-Income World: Causes and Consequences. American Economic
Review 83(2).
45 Hanushek, EA and Wößmann, L (2007) the Role of Education Quality for Economic Growth Washington, DC,
World Bank, Human Development Network (Policy Research Working Paper, 4122); Bledsoe, CH, Casterline, JB,
Johnson-Kuhn, JA, and Haaga, JG (Eds) (1999) Critical Perspectives on Schooling and Fertility in the Developing
World. National Academy Press, Washington, DC; Mensch, B, Lentzner, H, Preston, S (1986) Socio-economic
Differentials in Child Mortality in Developing Countries, New York, United Nations. For other reviews see
Colclough, 1982; Hannum and Buchmann, 2005; UNESCO, 2002; Watkins, 2001; World Bank, 1985/
46 Bruns, B., Mingat, A and Rakotomalala, R. (2003), ‘Achieving Universal Primary Education by 2015 – A Chance
for Every Child’. Washington DC: World Bank
47 47 For international experience, see: Lloyd, CB. And Young, J. (2009) New Lessons; the Power of Educating
Adolescent Girls. New York: Population Council.
48 Cited in C.B. Lloyd 2009: USA study: Dee, Thomas S. 2007. "Teachers and the gender gaps in student
achievement," Journal of Human Resources, 42(3): 528-554. Bangladesh study: Khandker, Shahidur R. 1996.
Education Achievements and School Efficiency in Rural Bangladesh. Washington, DC: World Bank. Asadullah,
Mohammad N. and Chaudhury, Nazmul. 2008. "Holy alliances: Public subsidies, Islamic high schools, and female
schooling in Bangladesh." in Mercy Tembon and Lucia Fort (eds.) Girls' Education in the 21st Century.
Washington, DC: World Bank: 209-238. Five-country Africa study: Michaelowa, K. 2001. "Primary education
quality in Francophone sub-Saharan Africa: Determinants of learning achievement and efficiency considerations."
World Development, 29(10): 1699-1716. Mozambique study: Handa, Sudhanshu. 2002. "Raising primary school
enrolment in development countries: The relative importance of supply and demand." Journal of Development
Economics.69: 103-128.
49 World Bank, UNICEF, DFID (2010) Participatory Poverty Assessment, World Bank, Ghana.
50 The Management of UK Budget Support Operations (draft), Independent Commission on Aid Impact (ICAI),
2012
51 Overseas Development Institute (ODI) Project Briefing No. 36, 37 & 38 Making Sector Budget Support work for
service delivery
52 CIDA (chair of the Education DPG), SIDA (Deputy chair), DFID, USAID, World Bank, WFP, UNICEF, UNESCO
53
EQUIP was undertaken in Shinyanga Region. The main findings of the evaluation were that project schools
benefitted from teacher training and materials inputs in those schools, which received the whole package of
interventions and this was reflected in improved examination performance. However, the attitude of head teachers
was seen as an important determinant of the effectiveness of the project. More could have been done to involve
district and ward officials in supporting and monitoring. Evaluation of the Education Quality Improvement through
Pedagogy Project (EQUIP), OXFAM December 2008.
54 Country Programme Evaluation: DFID/Irish Aid 2010
55 World Bank, Girls’ Education in the 21st Century: Gender Equality, Empowerment and Economic Growth.
Washington DC. See also UNESCO, Financing Education – Investments and Returns: Analysis of the World
Education Indicators. Paris, UNESCO Institute of Statistics. 2002. G. Psacharopolous and H. Patrinos.
56 DFID 2012 Political Economy analysis of the Education Sector in Tanzania
70
57Barber , M and Mourshed, M 2007 How the world’s best performing school systems come out on top
http://www.mckinsey.com/App_Media/Reports/SSO/Worlds_School_Systems_Final.pdf
58 Evidence from Zambia (IOB (2008) Impact Evaluation. Primary Education in Zambia. Policy and Operations
Evaluation Department No. 312. The Hague: OBT) and Uganda (IOB (2008) Impact Evaluation. Primary Education
in Uganda. Policy and Operations Evaluation Department No. 311. The Hague: OBT) suggest that investment in
school management is one of the most cost-effective methods of improving the quality of education. In Uganda
schools participating in a project aimed at improving the quality of school management produced 50% better
results than comparable schools.
59 Shultz, P (1993) Mortality Decline in the Low-Income World: Causes and Consequences. American Economic
Review 83(2).
60 Hanushek, EA and Wößmann, L (2007) The Role of Education Quality for Economic Growth Washington, DC,
World Bank, Human Development Network (Policy Research Working Paper, 4122); Bledsoe, CH, Casterline, JB,
Johnson-Kuhn, JA, and Haaga, JG (Eds) (1999) Critical Perspectives on Schooling and Fertility in the Developing
World. National Academy Press, Washington, DC; Mensch, B, Lentzner, H, Preston, S (1986) Socio-economic
Differentials in Child Mortality in Developing Countries, New York, United Nations. For other reviews see
Colclough, 1982; Hannum and Buchmann, 2005; UNESCO, 2002; Watkins, 2001; World Bank, 1985/
61 Bruns, B., Mingat, A and Rakotomalala, R. (2003), ‘Achieving Universal Primary Education by 2015 – A
Chance for Every Child’. Washington DC: World Bank
62 Dang, Sarr and Asadullah found that “despite their seemingly indispensable roles in promoting student
educational outcomes, there have been mixed results on the impacts of school supply and resources on access
and learning outcomes (Hanushek, 2006). Findings from recent rigorous impact evaluation studies suggest that
this is particularly the case for developing countries. On one hand, providing educational inputs such as textbooks
(Glewwe, Kremer and Moulin, 2009), flip charts (Glewwe et al., 2004), and reduced teacher-pupil ratios (Duflo,
Dupas, and Kremer, 2010) were generally found to have either no or very limited impacts on student test scores.
On the other hand, other inputs such as remedial education programs (Banerjee et al., 2007), extra after-school
classes (Banerjee et al., 2010), free school uniform (Evans, Kremer, and Ngatia, 2008), and reduced student fees
and scholarship (Kremer, Miguel, and Thorton, 2009) were found to increase student reading skills and test scores
and/ or decrease drop-out rates.” (IZA Discussion Paper No. 5659: School Access, Resources, and Learning
Outcomes: Evidence from a Non-formal School Program in Bangladesh, April 2011)
63 Hanushek, E.A. and Woessmann, L. (2010) The Cost of Low Educational Achievement in the European Union.
Analytical Report for the European Commission prepared by the European Expert Network on Economics of
Education.
64 ICAI 2012 DFID’s Education Programmes in Three East African Countries 2005-15 and World Bank 2006 From
Schooling Access to Learning Outcomes: An Unfinished Agenda
65 Alexander, R. (2008) Education For All, The Quality Imperative and the Problem of Pedagogy. CREATE
Research Monograph (20). IoE London; Bennell, P. (2004) Teacher Motivation and Incentives in Sub-Saharan
Africa and Asia. Brighton; Omari, I., Baser, H. (- in draft 2012) “Human Resources for Quality Education in
Tanzania”.
66Barber , M and Mourshed, M 2007 How the world’s best performing school systems come out on top
http://www.mckinsey.com/App_Media/Reports/SSO/Worlds_School_Systems_Final.pdf
67 Hanushek found significant differences in learning outcomes associated with good and bad teaching: students
with very good teachers will learn twice as much as those with bad. In Hanushek, E. (1992) ‘The tradeoff between
child quantity and quality’, in The Journal of Political Economy pp84-117; Mingat, A. (2005) ‘Options for a costeffective allocation of resources’ in Verspoor, A. The Challenge of Learning: Improving the Quality of Basic
Education in Sub-Saharan Africa. ADEA. Paris.
68A study in East Africa noted that “there is little existing research that directly correlates students’ achievement
outcomes with teachers’ training, qualification and contract variations, [however] the fact that teachers are the
main staff responsible for supporting pupils’ learning makes a connection between these two factors highly likely.”
IOE and ActionAid 2010 The role of teachers in improving learning in Burundi, Malawi, Senegal and Uganda: great
expectations, little support
69 Villegas-Reimers, E. (2003) Teacher Professional Development: An International Review of the Literature.
Paris: UNESCO International Institute for Educational Planning (IIEP)
70 Miti, M. & Herriot, A. (1997) Action to improve English, mathematics and science (AIEMS): a case study in
Zambia – the start-up process. International Journal of Educational Development, 17(2); pp. 163-172
71 HakiElimu (2011) Are our teachers qualified and motivated to teach?
72 Shommo, M.I. (1995) Teaching Home Economics by a problem-solving approach in Sudanese secondary
schools for girls. British Journal of In-Service Education, 21(3); pp. 319-330
73 Duffy, A. (1993) Steps towards new horizons. International Journal of Early Childhood, 25(1); pp. 49-53
71
74 World Bank (2010) ‘Does linking teacher pay to student performance improve results’. Human Development
Group Policy Brief, Washington DC; Muralidharan, K. and Sundraraman, V. (2006), ‘Teacher Incentives in
Developing Countries: Experimental Evidence in India’. Job Market Paper. World Bank; HakiElimu (2010)
Restoring Teacher Dignity: Volume I: learner outcomes, Teacher Development Management strategy (TDMS) and
the 2010/11 budget in Tanzania.
75 Barrera-Osorio, F. et al., 2009, World Bank Decentralized Decision-Making in Schools, The Theory and
Evidence on School-Based Management; MOEVT/VSO Zanzibar (2011) Leading learning: a Summary report on
effective leadership and quality education in Zanzibar.
76 Sammons, P., Hillman, J. & Mortimore, P. (1995) Key Characteristics of Effective Schools. Institute of
Education: International School, Effectiveness and Improvement Centre
77 IOB (2008) Impact Evaluation. Primary Education in Zambia. Policy and Operations Evaluation Department No.
312. The Hague: OBT
78 IOB (2008) Impact Evaluation. Primary Education in Uganda. Policy and Operations Evaluation Department
No. 311. The Hague: OBT In Uganda schools participating in a project aimed at improving the quality of school
management produced 50% better results than comparable schools
79 Malekela et al 2004. Impact Study on head teacher three months certificate course
80 Birdthistle et al 2011 What impact does the provision of separate toilets for girls at schools have on their
primary and secondary school enrolment, attendance and completion? A systematic review of the evidence
81 WB 2005: Global monitoring report: Millennium Development Goals from momentum to consensus; Gideon, B.,
Jules, A., and Tamsin, M (2004) ‘Water and sanitation; the education drain’ WaterAid; DFID (2011) ‘Water,
Sanitation and Hygiene Evidence Paper’
82 For international experience, see: Lloyd, CB. and Young, J. (2009) New Lessons; the Power of Educating
Adolescent Girls. New York: Population Council.
83 Cited in C.B. Lloyd 2009: USA study: Dee, Thomas S. 2007. "Teachers and the gender gaps in student
achievement," Journal of Human Resources, 42(3): 528-554. Bangladesh study: Khandker, Shahidur R. 1996.
Education Achievements and School Efficiency in Rural Bangladesh. Washington, DC: World Bank. Asadullah,
Mohammad N. and Chaudhury, Nazmul. 2008. "Holy alliances: Public subsidies, Islamic high schools, and female
schooling in Bangladesh." in Mercy Tembon and Lucia Fort (eds.) Girls' Education in the 21st Century.
Washington, DC: World Bank: 209-238. Five-country Africa study: Michaelowa, K. 2001. "Primary education
quality in Francophone sub-Saharan Africa: Determinants of learning achievement and efficiency considerations."
World Development, 29(10): 1699-1716. Mozambique study: Handa, Sudhanshu. 2002. "Raising primary school
enrolment in development countries: The relative importance of supply and demand." Journal of Development
Economics.69: 103-128.
84 In a randomized trial of a cash transfer program to support adolescent girls in Malawi, researchers found
improvements in attendance and test scores were found amongst girls whose grants were conditioned on school
attendance (Baird, McIntosh and Ozler 2010
85 Haki Elimu (2010), “How to ensure Educational Success for Girls: They have the right to complete their
studies”.
86 Institutional issues with educational systems in developing countries such as corruption, lack of transparency,
and inefficient use of resources may severely impair the effectiveness of increased school resources (Glewwe, P.,
& Kremer, M. (2006). Schools, teachers and education outcomes in developing countries. In E. Hanushek & F.
Welch, eds. Handbook of the Economics of Education. North Holland.).”
87 World Bank (2008a), “What Do We Know About School-Based management? Washington, DC: World Bank.
World Bank (2008b), “Guiding Principles for Implementing School-based Management Program”, Washington, DC:
World Bank (online toolkit).
88 Mulkeen, A. (2010) Teachers in Anglophone Africa. Issues in Teacher Supply, Training, and Management.
Washington, DC: The World Bank
89 Park, H. (2008) ‘The Varied Educational Effects of Parent-Child Communication: A Comparative Study of
Fourteen Countries’. Comparative Education Review 52 (2); William, J. and Somers, M. (2001) ‘Family,
Classrooms and School Effects on Children’s Educational Outcomes in Latin America’. School Effectiveness and
School Improvement, 12(4): 409-445.
90 Haki Elimu (2010), “How can communities make education better for their children?: A research report on the
role of the communities in improving education in Tanzania”
91 See IHS (2011) for a recent power analysis at local level in Tanzania
92 ‘Participation’ in local level decision making processes is really about the sharing of information on decisions
already made with little opportunity for communities to influence.
93 Moock (1973, 1976)
94 The teaching force represents two thirds of all civil servants.
72
Evidence from Bangladesh suggests that school performance, teacher attendance and transparency in
procurement improved as a result of an integrated approach to secondary school development . World Bank
(2008) Implementation, Completion and Results Report. Education Sector Development Support. IDA39730 World
Bank: ICR0000852
96 In Uganda the use of participatory action research was used to improve community participation in basic
education, USAID (2003) Approaching Education from Good Governance Perspective. USAID: Office of
Democracy and Governance
97 In Nigeria, the DFID-funded Education Sector Support Programme in Nigeria (ESSPIN), which started in 2008,
was conceived as part of a suite of programmes combining interventions to improve service delivery in education
and health with major efforts to improve governance and accountability. ESSPIN’s major areas of work combine
State level planning and public financial management with school and community based measures to improve
schools, in addition to in-service training for teachers, head teachers and school support officers (supervisors).
The objective is to establish affordable and replicable models of improved education that states can scale up using
their own resources. There are signs that this is happening. Several states have allocated resources to roll out
the ESSPIN integrated model. In these states there is political support and this is clearly a decisive factor. The
impact of ESSPIN has not yet been fully evaluated.
98 Estimated by UNICEF/Water Aid at an average unit cost of $35,000, exchange rate £1:$1.6
99 The number of teachers and school operating costs remains the same.
100 The figures are from 2011, to be updated with 2012-2013 data during inception phase..
101 This figure is for the number of children who can read a story in Kiswahili
102 Methodology: Enrolment in Standard II in 2010 (BEST) was multiplied by % of children able to read a story in
Kiswahili at Standard II level in Standard III (UWEZO), divided by 130 (number of districts) and multiplied by 20
(number of districts targeted)
103 Approximately 115,000 additional boys and 115,000 additional girls to be added to baseline.
104 Methodology: Number of students selected to F1 (BEST) was divided by 130 (number of districts) and
multiplied by 20 (number of targeted districts)
105 Methodology: Number of taught hours per day was multiplied by a number of days in a school week.
106 Data calculated in the Business Case appraisal document
107 UNICEF (2011) Concept note: Improving the quality of education at the school and classroom levels.
108 It’s expected that all teachers that undergo the training integrate students use of textbooks and supplementary
readers in to their lessons
109 It’s expected that all teachers that undergo the training integrate students use of textbooks and supplementary
readers in to their lessons
110 SDI (2010) Service Delivery Indicators: Pilot in Education and Health Care in Africa (Draft) does not include
information on number of head-teachers tracking performance of the teachers. No alternative source of data was
found.
111 BEST does not currently collect information about students’ attendance or truancy. Methods to collect this
information through the SDI, BEST or other community based methods will be determined in inception phase.
112 BEST or SDI Survey does not collect information on water supply in schools; GBVF (2011) A Review of Gender
Based Violence in Schools in Tanzania was used instead. Methodology: GBVF reports that only 40% of schools
have on-site water supply. Number of schools with clean and safe water supply was calculated using GBVF (% of
schools with access to on-site water supply) and BEST (total number of schools) figures.
113 Baseline available for basic infrastructure accounting for three services: electricity, water and sanitation.
114 URT (2010) Public Expenditure Tracking Survey for Primary and Secondary Education in Mainland Tanzania.
115 Number of authorised absences per week is not known. Alternative indicators were given.
95
73