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Global Co-ordination
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High-Level Group on Education
for All: Report, 2001 |
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For further
information,please contact: Abhimanyu Singh Lead
Manager,Dakar Follow-up Unit Education Sector
UNESCO 7,place de Fontenoy 75352 Paris 07
SP France Telephone:+33 (0)1 45 68 08 80 Fax:+33
(0)1 45 68 56 26 E-mail:efa@unesco.org Web
site:www.unesco.org The draft of this report was shared
with all participants in the first meeting of the
High-Level Group on Education for All. Director of
publication: Abhimanyu Singh Text prepared by : Clinton
Robinson Editorial co-ordination : Ulrika Peppler Barry
Editorial team: Karine Brun,Leslie Limage, Margarethe
Sachs-Israël, Florence Migeon, Janne Kjaersgaard
Editing: Wenda McNevin Graphic design : Sylvaine
Baeyens Printing Graphoprint ©UNESCO 2002
ED-2002/WS/7 Printed in
France |
F
o r e w o rd
I am
pleased to present this report of the first meeting of the EFA
High Level Group. The meeting was a particularly important event.
The governments,agencies and civil society organisations assembled
in Dakar in April 2000 at the World Education Forum were conscious
of the pressing need to maintain the momentum we had developed. To
this end,the Forum gave me the responsibility of calling together
a High Level Group which would be small,flexible and
representative - a group which would generate strong political
will to carry forward the urgent agenda of the Dakar Framework for
Action.
I am therefore especially satisfied that the first
meeting brought together representatives of all the EFA
constituencies - developing and industrialised countries,civil
society groupings,bilateral and multilateral gencies.The strong
commitment to EFA was demonstrated by the high calibre of the
participants and quality of their contributions.The meeting had
three major themes:political commitment,resource mobilisation and
civil society and partnerships.How far did the meeting facilitate
progress in these areas?
With regard to political
commitment I observed a healthy impatience to move beyond words to
action - to see national EFA plans prepared and financed,,to
budget new resources,to develop high quality monitoring
instruments to keep track of progress. Bilateral and multilateral
aid agencies were ready to mobilise new resources, requesting that
specific gaps and precise needs should be identified.Civil society
engagement in the meeting marked a new phase of upstream
partnership based on mutual respect and a common concern to work
concretely towards the Dakar goals.
The meeting also
identified some gaps:the need for a high quality monitoring report
to facilitate the work of the group;the urgency of articulating a
comprehensive EFA strategy;clarification of the role and structure
of the group itself.In collaboration with its EFA partners,UNESCO
will seriously address these issues in the coming months.
I
was grateful for the confidence which participants expressed in
UNESCO in its coordinating role,while recognising the high
expectations in this regard.For my part, I will continue to keep
EFA at the centre of UNESCO's agenda and programmes,and look
forward to increasingly active and productive partnerships with
all the constituencies represented at the High Level Group.Only
through our common will and joint effort will we succeed in
tackling the huge challenge of Education for All.
Koïchiro Matsuura Director-General,UNESCO
I
n t r o d u c t i on
The Dakar Framework for Action
stipulated that the Director-General of UNESCO would convene a
high-level group annually,as part of UNESCO 's 'mandated role in
coordinating EFA partners and maintaining their collaborative
momentum '.This first meeting of the group followed two meetings
of the EFA Working Group (November 2000 and September 2001).The
aim of the meeting was to 'serve as a lever for political
commitment and technical and financial resource mobilization ',as
well as being 'an opportunity to hold the global community to
account for commitments made in Dakar '.In line with this latter
goal,the Director- General prepared the first Monitoring Report on
Education For All 2001 as input to the meeting.
In
accordance with the Dakar commitment that it should be composed of
'highest level leaders from governments and civil society of
developing and developed countries, and from development agencies
',the Director-General of UNESCO invited the Ministers of
Education from eighteen countries representative of all regions of
the world,the leaders of four international non-governmental
organizations (NGOs)and the heads of five multilateral or
bilateral agencies.As the participants list shows (see Appendix
3),most responded in their personal capacity,while others were
represented by close associates.In addition,the Director-General
invited a number of observers.
The meeting was chaired by
the Director-General of UNESCO,Mr Koïchiro Matsuura.UNESCO
Division Directors,Directors of UNESCO Institutes,UNESCO Regional
Directors and other staff also attended.The Chair gave the floor
to observers during the meeting, at his discretion.
The
two-day programme was divided into five sessions:
_ Achieving the EFA goals
at the national level _ Building political commitment and
partnerships _ Mobilizing resources in support of EFA:the role
of international agencies and the function of debt relief
schemes _ Civil society participation _ Monitoring EFA
progress
In all,eleven prepared presentations were given as
input to the group 's deliberations.Lively discussion sessions
gave opportunity for free expression of a wide range of points of
view and experiences.
Setting the context - Koïchiro Matsuura,
Director-General of UNESCO
In welcoming participants to
this first meeting of the High-Level Group on EFA,Mr Koïchiro
Matsuura underlined the central importance of education in a world
living in the shadow of the 11 September events - 'learning to
live together ',as the Delors report put it,has acquired
particular urgency.He recalled the mandate given in Dakar at the
World Education Forum in 2000:to convene 'a high-level,small and
flexible group ' in order to maintain and increase political
commitment for EFA and mobilize the necessary financial and
technical resources.In terms of representation of the EFA
constituency,he noted that about half the participants are drawn
from developing countries.
As context for the meeting,Mr
Matsuura identified four specific challenges faced by EFA
partners,requiring a speedy response,innovation and
initiative:
_ Building effective and imaginative strategies
for educating the poor,the excluded and the marginalized. _
Eliminating gender disparities and achieving gender equality - the
2005 deadline looms large.. _ Recognizing the special
conditions of countries facing emergencies,crisis or post-conflict
situations. _ Recognizing the potential of the HIV/AIDS
pandemic to undo progress in EFA,particularly in
Africa.
The Director-General identified three major themes
for the meeting:political commitment,resource mobilization,and
civil society and artnerships.Political commitment at the national
level is crucial:how can governments actively engage their
partners,both national and international?How can the participation
of all actors in preparing national EFA plans be ensured? Some
national plans are ready and awaiting financial commitments,so
there is a need to put in place sensitive review
mechanisms.Incorporation of the aims of the international flagship
programmes at national level needs attention. Resource
mobilization revolves around the Global Initiative,which is
premised on synergy between national and international
resources.Mr Matsuura emphasized partnerships with civil society,
noting that 'the size and complexity of the EFA challenge are too
great for governments alone to address '. In this respect civil
society must be part of the policy debate,founded on mutual trust
between government and civil society.
The Director-General
concluded with a number of suggestions, highlighting the start
made in monitoring EFA through the first Monitoring Report ;this
is a forerunner of a more comprehensive report which will be
presented to the High-Level Group each year.He expressed cautious
optimism about the 2015 EFA targets,while recognizing the
difficulties and expressing the concern that security issues
should not edge out social priorities.The full text of the address
is found in Appendix 1.
We
must find ways to educate the poor despite their
poverty,amidst their poverty,out of their
poverty. Koïchiro
Matsuura |
Structure of the current report This report follows the
sequence of the programme (see Appendix 4),in sections
representing the five sessions.It summarizes each of the eleven
papers presented by countries and organizations.Discussion periods
were part of each session and this report renders the essence of
the remarks made and points debated. In order to capture the tone
and ethos of the meeting, an observer 's viewpoint is
presented,before concluding with an overview of the process of
adopting the final communiqué.
Achieving EFA goals at national level
EFA
planning goes ahead in Pakistan despite
difficulties
Ms Zobaida Jalal,Minister of Education,began by alluding to
the current international context in which Pakistan finds itself
and noting that ignorance,poverty and illiteracy breed extremism -
education is a crucial tool to fight terrorism.Pakistan 's
response to Dakar and the EFA challenge was first to identify
educational gaps, a major achievement in itself.The development of
educational strategy has been fully embedded in the Poverty
Reduction Strategy Papers (PRSP)process,with decentralized
planning being a particular focus,all the way down to district
level.Pakistan has demonstrated political commitment to EFA by
holding a national conference,and national and provincial
forums,and by drafting both provincial and national EFA
plans.These focus on primary education,adult literacy and early
childhood education.Planned targets are as follows:
_
primary education:from the existing 66%enrolment to 100%in
2015,with gender parity;girls ' education is a special
priority; _ adult literacy:from the existing literacy rate of
49% to 86%in 2015,adding 81 million to the literate
population;and _ early childhood education:from the existing
25% participation rate in early childhood education centres to
50%in 2015.
Planning includes a focus on disadvantaged
groups, quality improvement,curriculum reform,building stronger
civil society alliances,enabling district-level planning and
management,and the use of ICTs.These plans are costed at around
US$7bn above current budgets,of which national resources will
cover only 40%- Pakistan seeks to mobilize the rest through the
international commitments made at Dakar.Public-private
partnerships must be explored,but must not become an excuse for
less public responsibility; user charges will further exclude the
poor.Pakistan appreciates recent efforts to relieve its debt, but
regrets that it has taken a war situation to implement
this.
Ms Jalal laid particular stress on regional
cooperation in South Asia,noting the large numbers of
non-literates and out-of-school children in the egion.Pakistan is
committed to regional collaboration and has shared its EFA
National Plan of Action with other countries.The Afghan crisis is
increasing pressure on Pakistan 's resources,with an urgent need
to address the situation of homeless women and children.While
appreciating international efforts to provide new resources for
EFA, Ms Jalal called for greater support for a holistic approach
to education,emphasizing the values of peace and diversity. She
concluded by challenging the High-Level Group to make a difference
in education,to 'stand up and act together
'.
…we cannot and should not
remain oblivious of the fact that ignorance,poverty and
illiteracy breed extremism.It is more critical than ever
that UNESCO and all Member States re-double their efforts to
promote education for all in every region and in every
continent in the fight against international terrorism.
Zobaida Jalal |
Progress through partnership and consultation
in Senegal
The Minister of Education, Mr Moustapha Sourang, began by
presenting the regrets of the President of Senegal who was
unfortunately prevented from responding in person to UNESCO 's
invitation. Mr Sourang recalled the President 's words at the
World Education Forum in Dakar,characterizing the education
problem in Africa as 'falling between two extremes:having no job
and no education,or having an education and no job '.Senegal is
determined to address this situation through EFA.Stressing the
responsibility of the state for education,the Minister noted that
in sub-Saharan Africa states do not have the funds to face this
challenge - a challenge that is increasing with population
growth.Thus the state must experiment with new partnerships and
mobilize external resources.The growing willingness of aid
partners to fund social areas and to take a holistic view of
development gives grounds for optimism.
Senegal has taken a
systematic approach to the development of an EFA national
plan.Taking into account a ten-year education and training plan
initiated in 1996,the EFA national plan was launched on the
anniversary of the Dakar Forum. Its elaboration involved a
five-stage process,with broad consultation and technical input,and it includes planning at
departmental and regional levels.Around sixty NGOs are
active,mostly in non-formal education. A ’partnership charter ’
has been developed to provide a framework for cooperation between
all the actors.Building greater consensus with civil society will
be a particular priority. Mr Sourang introduced the question of
the relationship between basic and higher education,with two
concerns:firstly, an emphasis on basic education runs the risk of
reducing resources for higher education and,secondly,the donor
community is divided in its approach to higher education
funding.He called on UNESCO to play the honest broker in this
situation.In addition,more flexible financing conditions are
required for the funding of education.
Together,we
the men and women of good will in the North and the South …
say that we want education and work, not one without the
other. Abdoulaye Wade, President of Senegal, at the
Dakar Forum 2000
|
Discussion and reactions
In discussion lessons
were drawn from the events of 11 September ,including the
observation that extremism is bred by illiteracy and poverty.This
underlines the importance of education in promoting tolerance and
as a guardian of peace.It was hoped that once again the worst of
times might bring out the best in the human spirit.Comments and
remarks were made on a wide range of EFA-related issues,with
frequent references to progress and constraints in particular
national contexts.
Broadening the debate,the question was
posed:what kind of education for what kind of development? In
response it was noted that levels of literacy do not necessarily
coincide with levels of national scientific progress.Further
general comments on educational approaches included the following:
- There must be a right to employment,as well as a right
to education. - Education must not be seen a service,but as an
institution that transmits values. - Education must promote
social equity. - Marginalization from education is a cultural
as well as an economic phenomenon.
A number of issues
central to ensuring EFA were raised,based on lessons from a
variety of national situations:
- Access to education:the
Philippines identified and abolished hidden user costs,such as Boy
Scout dues and exam fees,with the result that enrolment increased
by 7%.As part of their national plan for EFA, India is giving
special priority to groups who have been hard to reach,such as
girls and slum children.Kenya ’s affirmative action for
disadvantaged groups includes the re-admission into school of
those who dropped out due to pregnancy.
- Quality of
education:as an example of how to improve quality,the Philippines
said that they now concentrate on five key subject areas in basic
education:Pilipino, English,science,maths and good
citizenship.Teacher training and curriculum reform are essential
elements of quality improvement.
- Gender:concern was
expressed about the image of women often portrayed in textbooks.
- Adult learning/non-formal education (NFE):this should be
strengthened as an alternative learning opportunity,with attention
to developing a policy for post-literacy activities in order to
avoid relapse and loss of newly acquired skills.Cuba noted
progress in adult learning by using radio for literacy,including
sharing their experience in the Caribbean region. In the same
region,seven countries are cooperating in adopting common measures
of literacy.UNESCO ’s Director-General emphasized the need to
reach out to adults and to promote lifelong learning.
- EFA
plans:as these are developed they should indicate precise
financial needs,as well as other kinds of gaps.
There was
concern to identify the role and purpose of the High-Level
Group,which was a significant opportunity to carry forward the EFA
agenda — this discussion was planned for the final session.
Some remarks concerned the role of NGOs and civil society
.On their part,they expressed a willingness to work with
governments.One participant asked if they really are equal
partners and to whom they are accountable.As an example of civil
society engagement in EFA,it was noted that in Senegal NGOs have
contributed to a 5%increase in the literacy rate,but that national
assessment of literacy does not take civil society and
community-based organization (CBO) activities adequately into
account.
Several comments related to the role of UNESCO
:it is the only international forum for educational discussion and
it needs to give intellectual input and provide a lead in the
educational debate.
Building politival sommitment and
partnerships
Effective consultation and effective
management:keys to EFA for Canada
Ms Maria Minna,Minister
for International Co-operation, started by re-affirming the
central importance of education - for human rights,health and
nutrition, HIV/AIDS prevention,active
citizenship,equality,justice, dignity and tolerance.Basic
education is the foundation of a lifelong learning process
essential for each person in today 's world. Evidence shows that
investment in social development is crucial to eradicating
poverty.
Canada is entirely committed to ensuring that the
Dakar goals are pursued and realized.Taking the Monitoring Report
as input,the Minister focused on three inter-connected
principles:national ownership,partnership and the role of civil
society.All are based on consultation with stakeholders and
communities.Canada undertook such a consultation in designing
their own 'donor 's action plan ' to support EFA..The outcome will
be a quadrupling of Canada 's investments in basic education.
Using existing resources more effectively and relieving the burden
of debt are further strategies for increasing support.Canada and
its G-8 counterparts have strong commitments for the Highly
Indebted Poor Countries (HIPC)initiative.Canada has proclaimed a
unilateral moratorium on debt payments for well-performing HIPC
countries.
In addition to financial
resources,human,technical and logistical resources must be
mobilized,for example using UNESCO 's network of educators and
sharing best practice.
Ms Minna drew attention to four
management issues:
_ Greater donor coordination:this will
be a key concern for the G-8 Task Force on Education,in which
Canada will play an active role.
_ Flagship programmes:we
need to ensure these do not deflect effort or resources from
national EFA processes.
_ UNESCO 's coordination
role:UNESCO has strengthened its role,but is the mandate clear
enough?Are the right tools available to carry EFA
forward?
_ Monitoring EFA:all partners must work to put in
place common indicators that allow for regional variation; the
Millennium development targets are a good starting
point.
She concluded by issuing a challenge to make full
use of the 'vast human resources at our disposal ' in pursuit of
EFA objectives.
UNICEF 's
priority:fulfilling our obligation to children
'A quality primary
education is the right of all children, and the obligation of all
governments ' - Ms Carol Bellamy,Executive Director of UNICEF,saw
this as the basis of a common understanding of EFA,founded on
international declarations and conventions.She developed this
principle by calling for attention to the basics:'children who are
mentally and physically able to learn,and teachers who are ready
and able to teach,in educational environments that are
available,affordable and welcoming to children and their parents.'
Stressing the value of the strong partnerships among the United
Nations agencies and with civil society,she underlined the value
of the United Nations Girls ' Education Initiative (UNGEI),whose
immediate objective is to close the gender gap by
2005.
Charged to represent UNDP at the High-Level Group, Ms
Bellamy reported that UNDP 's Administrator sees education as
critical to development and that he has asked resident
coordinators around the world to give particular attention to
supporting UNGEI and other EFA initiatives. Ms Bellamy rehearsed
the benefits of educating girls - a key element in economic
development;educated girls become educated women who are more
likely to educate their own children,and have smaller and
healthier families.Listing new initiatives in a number of African
and Asian countries,she called for mechanisms to reach the most
excluded and disadvantaged children, developing targeted
approaches for those most at risk. Efforts must address child
labour,the impact of HIV/AIDS and preventable diseases so that
these children can have an education.Second-chance education of
good quality must also receive attention. She concluded on an
optimistic note,observing that this is the most opportune time
imaginable to move forward with these challenges:hope rather than
despair must motivate organizations and citizens to fulfil our
obligations to children.
I am struck by how these
three principles - national ownership,partnership and the
role of civil society - interact with each other.When they
're in synch,they reinforce each other.But if one element is
not harnessed to its full potential, the others suffer and
our goals are put further out of reach. Maria
Minna |
Discussion
and reactions
In response to these presentations,UNESCO 's Director-
General gave a framework to the debate by asking the group to
consider four questions:
_ How to build on the momentum for
EFA _ How to show political commitment and put it into
practice _ How to mobilize resources _ How to make flagship
programmes compatible with national plans
These questions
were addressed in part during this discussion session and were
taken up again subsequently. Once again the discussion ranged
widely - the over-- arching theme was that of partnerships and how
crucial they are if there is to be any progress in
EFA.Participants also repeatedly stressed that the time has come
for action,moving beyond conceptual development and strategy
formulation to practical implementation - this should be one of
the major outcomes of the High-Level Group
meeting.
National ownership:there was complete
agreement that countries must be in the driving seat with regard
to EFA planning and implementation.This will be the basis of
partnership at the international level:national commitment will
generate international commitment. National ownership is expressed
in central and eastern Europe by new legislative frameworks to
promote education for all:the training,status and remuneration of
teachers is a crucial part of this,as is the development of the
use of ICTs for educational purposes.As national EFA plans are now
translated into action,operational guidelines need to be
developed.
Nature of relationships:a key question is
how best to structure coordination between the country level and
international forums,the link between the global and the local -
civil society has an important role to play here.What kind of
interaction should there be between the global EFA movement and
national strategies for poverty reduction?Global approaches must
always be linked to concrete realities.Partnerships also need to
be developed close to the grassroots,within communities and among
institutions represented at that level.At national level,since
education cuts across sectors, partnerships must include many
ministries,thus building on existing structures.In the
international arena,how are the relationships between multilateral
and bilateral agencies to be defined?At the other end of the
spectrum,the engagement of the poorest families and communities
must not be neglected - they often know what is needed to break
the cycle of poverty.In all these partnerships,there is a need for
tools to exchange information about objectives, interventions,
programmes and good practice - this will require adequate
coordination and permanent dialogue between international partners
and countries.
Alternative approaches:participants
expressed a concern that non-formal alternatives to schooling
should be made available to out-of-school youth,in cooperation
with civil society,and that these initiatives should develop links
to the formal system.
Quality:the quality of basic
education was stressed repeatedly and requires as much attention
as the quantitative goals of increasing access to education.
External aid :according to the World Bank representative,
a total of US$300bn is spent by developing countries on
education,while international aid to education is only US$4bn - a
little over 1%%.Can the international community double this
aid?While little has happened practically on this front since
Dakar,there are grounds for optimism because of initiatives of
groupings such as the G-8 and the Global Campaign for Education.
There is a need to define the mechanisms for financial support
from donors,with the emphasis on mechanisms that
work.
Flagship programmes:there was a warm welcome
for the adoption of the new programme on disability,which UNESCO
is committed to promoting among its Member
States.
Only quality education can
equip girls with the confidence to make the most of their
abilities … and can put young women on a path to economic
and social empowerment. Carol
Bellamy |
Mobilizing resources in support of EFA
Commitment:the basis
for action - United Kingdom
Acknowledging the size of
the challenge of universal primary education,Ms Clare Short,
Secretary of State for International Development,noted significant
progress in some countries - citing nine countries of sub-Saharan
Africa where enrolment rates have reached 90%.
The Dakar
commitment to ensure that 'no country seriously committed to EFA
will be thwarted in their achievement of that goal by lack of
resources ' raises two questions:
_ When is it clear that a
government is seriously committed to EFA? _ How will the
international community fulfil its pledge?
Strong political
will,national resolve and clear educational policies,within a PRSP
framework,will be indicators of commitment.Ms Short suggested
three further indicators:
_ rapid abolition of user fees
and other direct costs _ allocation by governments of
significant resources to basic education _ concrete efforts to
promote gender equality
It is important that EFA plans
should form an integral part of plans to reduce poverty.Once such
plans are in place,UNESCO must use its leverage with the
international community to ensure that adequate funding is
forthcoming.In addition,donor coordination is particularly
critical in the education sector in order to reduce transaction
and administrative costs for developing countries.
Ms Short
addressed the role and structure of the High- Level Group,pleading
for a smaller,but representative group meeting annually to receive
the Monitoring Report .This report will be an invaluable tool to
identify specific needs,rally further effort and make connections
with other forums,such as the G-8 summits and the annual meetings
of the Bretton Woods organizations. The United Kingdom committed
itself to providing funding for such a report.Ms Short concluded
with a ringing and optimistic affirmation:'We are the first
generation who have in our hands the possibility of abolishing
illiteracy from the human condition.Let us ensure that we rise to
the challenge.'
No single
development intervention has more impact on the prospects of
a country than the education of its children,particularly of
girls. Clare
Short |
Japan:investing in capacity
Mr Takao Kawakami,President of
the Japan International Cooperation Agency (JICA),cited his own
experience in Indonesia and Pakistan to emphasize the strong
demand for education at the grassroots - in Pakistan,for
instance,women were determined to attend literacy classes in spite
of their heavy workloads. JICA sees education as the foundation
for development and is committed to a capacity-building
approach;this has two prongs:
_ support for local
personnel,to ensure local ownership and ongoing
sustainability. _ sharing Japanese experience as input and
stimulus for local goal-setting.
Sector-wide approaches
will facilitate common understandings among donors as a flexible
framework for maximizing each agency 's comparative advantage. As
far as Japan 's contribution to education is concerned, Mr
Kawakami recalled his country 's commitment to a five-year social
development funding package in Africa and noted that provision of
school infrastructure has enabled school enrolments to
increase.HIV/AIDS prevention and bridging the digital divide will
be central elements of current Japanese aid.A review of education
programmes has led JICA to put greater emphasis on non-formal
education and cooperation at community level with NGOs in HIV/AIDS
prevention. Japan will work closely with the G-8 Task Force on
Education in mobilizing international efforts for basic
education.
It important to bear in
mind that donors ' assistance is utilized within a flexible
framework in the way that each donor 's different
comparative advantages are respected.… Another important
issue: development cooperation should be implemented through
developing countries ' ownership,not by donors. Takao
Kawakami |
France:cooperating to
promote access,equity and
quality in education
The Ministre-Délégué pour la cooperation et la
francophonie,Mr Charles Josselin,recognized the Dakar Forum as an
important step forward in strengthening international commitment
to education,one which must now be implemented.The overall aims
are access,equity and quality in education, around which all
stakeholders must structure their dialogue.Recalling that the
national level is paramount,Mr Josselin introduced two
principles: ownership and participation. Ownership implies
policy definition by governments themselves,while participation
engages all stakeholders in this process.
He cautioned
against investing extra resources in education systems that are
less and less effective and called rather for national action
plans based on sound analysis and elaborated within a sector-wide
approach.The larger framework consists of poverty reduction
strategies,in which debt relief,such as France has recently
committed itself to,has a key role to play. Support for UNESCO 's
role in Africa,collaboration in the G-8 Task Force on Education,
possible investment in HIV/AIDS work with UNESCO,partnership with
Conference des ministres de l 'éducation des pays ayant le
français en partage (CONFEMEN)and the World Bank, and
re-orientation of French aid in education - these are all measures
to which France is committed.Mr Josselin finished by calling for a
balance between meeting urgent and large needs,and sustaining
efforts in the long term in pursuit of EFA
goals.
France will make an exceptional
effort in debt relief,calculated at 10 billion euros.We would wish
this debt relief,as a matter of priority,to be of benefit to
social sectors, particularly education. Charles
Josselin
G-8:education now on the agenda
Speaking in his capacity both as
Director-General for Italian Development Cooperation and Chair of
the G-8 Task Force on Education,Mr Giandomenico Magliano noted
that the creation of the Task Force was driven by a political will
to combat poverty in all its aspects - social, cultural and
ethical,as well as economic and financial. He noted that this was
a significant shift in policy direction.In contrast to previous
G-8 summits,the Genoa Summit was characterized as 'extroverted ' -
the group would now be more outward-looking and take concrete
decisions with respect to its active participation as a group in
international development.
Mr Magliano emphasized the
current context of globalization and noted the need for 'more
global governance '.He defined the policy framework to this end in
a threefold way:
_ valorization of human capital _
safeguarding of natural capital _ equitable distribution of
financial capital
With regard to education, the G-8 group
is aware of the need to give priority to education within poverty
reduction strategies and, to strengthen educational strategies
through ICTs,as well as supporting the role of UNESCO in working
towards EFA goals.The specific aims of the Task Force
are:
_ to facilitate coordination between governments and
donors _ to mobilize the necessary additional resources _ to
respond to clearly identified needs _ to monitor commitments
made at Dakar,in cooperation with other stakeholders
In
conclusion,Mr Magliano announced an additional voluntary
contribution from Italy to UNESCO and called upon the latter to
'help developing countries to mainstream education in their
development policies and in stimulating developed countries to
mobilize additional resources and to improve both effectiveness
and coherence in supporting country-owned education
strategies.'
…the Heads of State and of Government
of the G-8 countries,on the occasion of the Genoa Summit,
recognized the fundamental role played by education as a central
factor for growth and mployment. Giandomenico
Magliano
Gaps of financing and policy identified by the
World Bank
In
EFA there is a financing gap and a policy gap. This was argued by
Mr Jozef Ritzen,Vice-President for Human Development at the World
Bank.In an introduction he mentioned the enormous challenge faced
by some countries in meeting the goals of gender equity
and universal schooling,a
challenge complicated by the HIV/AIDS pandemic.Debt relief will go
some way to filling the financing gap - he estimated that around
40%of debt relief is being used for education.What is the
remaining need?Mr Ritzen was not satisfied that we know the
answer,since estimates,including those of the World Bank,are based
on doing more of what is already being done;this is unlikely to
reach the poorest and most marginalized populations without access
to education.Nor are the costs of ensuring that each child
completes primary education factored in.The policy gap exists
because learning outcomes are not adequate and not commensurate
with inputs.Reforming the education system is politically
charged,but must be tackled.Levels of school equipment and numbers
of hours in school must be addressed by policy
shifts.
Cooperation in EFA will be based on national
ownership of education reform,a broad exchange of knowledge and
experience,good budget support for education and space for policy
development. Local capacity is crucial and must be built up - in
ministries,think tanks,civil society and statistical services.The
World Bank,Mr Ritzen affirmed,is ready to work to mobilize
additional resources for EFA and to support policies that address
the needs of the most marginalized:street children ,the
disabled,child workers and those affected by the impact of
HIV/AIDS.
Remarking on the events of 11 September, Mr
Ritzen observed that a 'textbook war ' often precedes a conflict,
when good neighbours are portrayed as adversaries.The impact of
recent events may positively affect international solidarity,but
have a negative effect on the availability of
resources.
The effort to fill the
financing gap must necessarily be matched by a firm
commitment at the country level to fill the policy gap … The
financing gap and the policy gap must be closed.We owe it to
the children of the world. Jozef
Ritzen |
Discussion and reactions
This important topic - the
mobilization of resources - stimulated a lively and extensive
debate,with the emphasis on developing concrete responses and
finding practical ways forward in the pursuit of EFA goals.
Despite the above reported figures and commitments, the
participants in the High-Level Group recognized that much more
will be needed to reverse the decline of development flows which
occurred in the 1990s.Unless there is major progress in mobilizing
stronger international political will and mobilizing greater
financial resources, the EFA goals will not be reached on time or
at all.
How can the pledge of Dakar to
meet the financing gap be fulfilled?The commitment to Dakar
supposes that a country will develop strategies to reach the six
goals of the Dakar Framework for Action. In order to facilitate
international support for the implementation of these
strategies,it was recommended that a mechanism be established to
set clear criteria for assessing whether a given country is
politically seriously committed to EFA goals.Through these
mechanisms,the credibility of national EFA plans could be assessed
and the countries could then more easily become candidates for
increased international support,as pledged in the Dakar Framework
for Action.
In the context of setting these
criteria,special attention should be given to efforts made to
achieve universal primary education (UPE)as soon as possible and
at the latest by 2015,and to efforts made to eliminate gender
disparities by 2005.Free compulsory primary education, including
provision of books, uniforms,transport and so on for the
poorest,and a safe school and learning environment, were also
considered as areas of special concern in the context of assessing
the seriousness of countries ' commitment to EFA goals..Some
countries will require a dramatic shift in policy if they are to
be considered seriously committed to reaching out to the more
marginalized populations.The effort to meet the financing gap must
necessarily be matched by a firm political commitment at the
country level. It was also noted on several occasions that
resources should not only be understood exclusively as financial
resources. Achievements will not be made without human resources
and technical cooperation.
NGO representatives cautioned
international partners that increased access to resources should
not be tantamount to an increase of the debt burden of the
recipient country. Access to funds should as far as possible be in
the form of grants. Special attention should be given to heavily
indebted countries.It was also urged that resources should not be
invested in education systems showing little efficiency,but only in systems that
perform well in terms of access,equity and quality.
A
number of areas demand special attention in terms of
investment.Preventive education relating to the spread of the
HIV/AIDS pandemic,provision of education in emergency and crisis
situations,gender equity and girls ' education,,teacher training
and improved working conditions for teachers,and the establishment
of safe school and learning environments - these issues were
touched upon again and again as areas which demand special
attention in terms of investment.Despite the fact that HIV/AIDS
and unstable situations such as conflict and civil war are
undermining educational delivery,these challenges must not be
seen as problems which make progress impossible.They should,on the
contrary,be addressed with adequate attention and
resources.
The poor level of learning outcomes was also
mentioned as an area of special concern.The establishment of
sustainable book provision and an efficient use of ICTs in
educational delivery would be relative simple ways of making a big
difference in improving the quality of education. Basic education
and in particular UPE remain the priority of priorities.UNESCO was
urged to come up with a firm view of the strategies needed to
achieve UPE.This being said, several participants remarked that
the commitment to Dakar should not hamper the development of the
other levels of education,such as secondary and higher
education.
Greater coordination between development
agencies at the international and national levels was highlighted
as a prerequisite for reducing the administrative burden faced by
many developing countries that deal with many different partners
at the same time for the achievement of national development
objectives.
The importance of integrating national EFA
plans into broader development frameworks and sector-wide
approaches,in particular PRSPs,was reiterated as a prerequisite
for sustainable development and appropriate coordination among
development partners at the national level.The inter-connections
between national EFA plans and poverty reduction strategies were
also considered a determining factor for the continuity of
long-term support of international partners to the implementation
of these plans.If EFA plans were established separately, as
'UNESCO-EFA Plans ' there would be a risk of fragmentation and
parallel systems,as well as duplication of efforts.To build on
existing structures and experience was therefore considered
crucial for efficient resource utilization.EFA partners
should,in return, ensure that the national PRSPs and other
frameworks pay sufficient attention to the six EFA
goals.
Participants highlighted once again the importance
of national ownership of processes within EFA to ensure
sustainability beyond the intervention of any international
partner.Broad consultation and community participation were cited
as prerequisites for ensuring the effectiveness of educational
programmes.Countries should set their own development goals and
targets,and the international community should be partners
(financial as well as technical)in this endeavour. Investment of
time,financial and human resources in national and institutional
capacity-building must go hand in hand in order to develop
critical and analytical operational think-tanks at national
level.
Several speakers expressed concerns about how to
maintain the momentum of EFA over the years.There is an urgent
need to meet the high expectations of countries who are ready with
well-elaborated EFA plans and now seek funding to go ahead with
implementation. The United Republic of Tanzania was mentioned as
an example which needs approximately US$93 million per year for
EFA.The international community must respond concretely to
countries in order to maintain the EFA momentum - this action
cannot be delayed for one or two years.Action is needed now to
reflect the international commitment made in Dakar and to
facilitate the delivery of results at the outcome and classroom
level.
To implement EFA goals and sustain the process,it
will be necessary to go beyond traditional ways of financing
education.Most speakers mentioned the crucial role that civil
society participation,and local governance and management would
have to play in meeting educational needs.Momentum will only be
maintained in the long-term if society at the grassroots gains in
the process.Participants stressed the necessity to break with
conventional ways of financing education;local governance of the
aid itself was suggested as an innovative
strategy.
Civil society participation
Civil
society has a unique and essential contribution - Oxfam GB
Ms Barbara Stocking,Director of Oxfam
GB,began by listing what civil society and NGOs bring to the EFA
table:deep connections with what is happening on the ground and a
sense of what will and will not work. Internationally,civil
society works to keep education high on the global agenda,to
monitor progress, to advocate for change and to promote public
support. Nationally,civil society must be involved in the
formulation of EFA plans and in monitoring their implementation.
At the local level - a particular focus of civil society -
experimentation,,innovation and the promotion of accountability
within the community are areas of action of NGOs.Referring to the
global initiative,Ms Stocking emphasized the aim to achieve free
and universal basic education, without any hidden costs. The
global initiative must have a strong national monitoring
component,with publicly available reports,and a viable mechanism
for closing financing gaps. Turning to the outcomes of the High
Level-Group, the Oxfam GB Director called for urgent action to
identify gaps in financing country by country - to be completed by
March 2002 in time for the rescheduled United Nations Special
Session and the Canada G-8 meeting.Support for developing national
plans must be organized,especially where there are gaps of policy
and practice.The High-Level Group might benefit from being
smaller,with rotating representation. This could expedite the
progress that is urgently needed.UNESCO faces the challenge of
channelling the strong commitment of the High-Level Group - and
must do so if the meeting is to make a difference.
What civil society brings
is often a great sense of reality of what will work,what the
situation really is,and how people want their education
system to work. Barbara
Stocking |
Education as a human right - Global March against
Child Labour
Drawing on his experience in working
with children who are victims of slavery and prostitution, Mr
Kailash Satyarthi, Chairperson of the Global March against Child
Labour,saw education as the key to their liberation. He quoted
examples from India,the Philippines and Brazil to demonstrate how
education can be a means of empowering children and their parents
in ways that enable them to escape the indignity of slavery,bonded
labour and unrepayable debt.Education is a non- negotiable human
right and yet it is often not respected or implemented as such.Mr
Satyarthi presented seven areas of action as key elements towards
this end:
_ local ownership pro-actively using local media
and institutions to lobby for greater political will; _
participation of all stakeholders,including civil society -
this will need support where governments perceive civil society
organizations as critics; _ timely and adequate funding,both
internal and external; _ commitment to the elimination of
child labour,with the conviction that education is the most
powerful preventative measure; _ effective monitoring
mechanisms locally,nationally and internationally,with broad
participation and transparency; _ systems for recourse and
redress:where parents want to exercise the right to education for
their children, there must be institutions equipped to provide
speedy recourse;and _ coordination across ministries and
departments,and with civil society organizations working in a
variety of areas involving education links with gender,
employment,disability,HIV/AIDS,minorities and many other areas.
Mr Satyarthi pleaded strongly for mechanisms at national
and sub-national levels to monitor the implementation of education
as a human right, in ways parallel to the monitoring of other
human rights. This frequently involves human rights commissions at
national level and, he proposed, should involve vigilance
committees at district level. Quoting an Indian boy's reply to
former United States President Clinton, Mr Satyarthi concluded
that we all face the challenge of working for education for all,
in whatever capacity we can.
Yesterday 's truth was that
you cannot sleep in peace if your neighbour is hungry,but
today 's truth is you cannot even live or work in peace if
your neighbour is kept uneducated. Kailash
Satyarthi |
Discussion and reactions
Participants responded to the
presentations with a number of further ways in which civil society
must be engaged in EFA. It was emphasized that cooperation with
civil society has a growing place in EFA processes in many
contexts, but not everywhere as yet. Efforts must continue at all
levels to bring civil society into the process. Governments cannot
achieve EFA on their own, and need to cooperate with civil
society; they must also reach out to the private sector. At a
local level, EFA requires harmonious cooperation between local
authorities and local communities. Early childhood development
also needs the mobilization of local communities. The role of
civil society is crucial in increasing enrolment, particularly of
girls; schools in themselves are not enough, communities must be
mobilized to send their children to school, for instance in slum
areas, and civil society can be a mobilizing force. They also have
a role to play in taking the EFA message out to the grassroots - a
challenge where there are barriers of distance, diversity and
language. In some contexts, civil society can ensure greater
continuity than governments.
Civil society engagement must
include teachers and their organizations, with due attention to
teacher training as well as to teachers' role and status. Civil
society representatives called for greater sharing across regions
of ways in which civil society is engaged in the EFA process and
they commented on the waste of resources on arms that could be
used to fund EFA initiatives. As civil society strengthens links
with the United Nations system there needs to be transparent
communication of plans and strategies to ensure full
cooperation.
Participants took the opportunity to draw
attention to countries at risk needing special consideration;
otherwise they will have no chance to reach the Dakar goals.
Within countries, the most disadvantaged groups must be
specifically targeted - 'the least privileged amongst the
under-privileged'. Basic education is a human right and a factor
in social change; how can we ensure that we channel resources to
human resource development in those countries where illiteracy is
high?
Several participants mentioned a holistic approach
to education - ensuring that relevant links and connections are
maximized. This means looking at the different levels of education
in a coherent manner, focusing on the values that underpin the
quality of education, recognizing that education is a matter of
human relations, and establishing links between formal and
non-formal approaches at local level.
Monitoring EFA progress towards a quality
annual report
The Monitoring Report was welcomed as
a useful tool in assessing progress; UNESCO's Director-General
noted that this was a first attempt and he committed UNESCO to
producing a high quality report in future years as input to the
work of the High-Level Group.
Participants emphasized that
the the report should be a learning tool for all those involved in
EFA. Future editions should therefore problematize EFA experience,
present what has worked and what has not worked, note which
countries are in danger of not meeting the Dakar targets, and
specify good examples and successes. The report should analyse the
reasons for these different situations and draw out the lessons to
be learned.
To do this, the report must be a practical
monitoring instrument. One of the conditions to monitor progress
is accurate data. Thus the annual monitoring report should provide
accurate statistics about results achieved at the national level,
clearly specifying which countries are making progress and which
face severe problems in implementing strategies for meeting the
goals of EFA. The document should contain accurate qualitative and
quantitative data presented country-by-country. It should thereby
become a practical tool for the High-Level Group to sustain the
long-term commitment required for stable resource mobilization. It
would enable the group to monitor concrete progress and the
international community to react to these results.
The
important role of the UNESCO Institute for Statistics (UIS) was
recognized by the High-Level Group for the elaboration of a
quality report with accurate data. UIS would provide the core
up-to-date data and UNESCO would have the responsibility to put
the report into shape and context.
The yearly monitoring
reports should also reflect progress made through the increased
international cooperation and mobilization towards EFA by other
agencies and forums, as for instance progress made by the G-8
special Task Force on Education. The report should reflect shifts
in focus and priorities of international agencies in support of
EFA.
Specific indicators should be elaborated to measure
flow of funds so that these figures could be appropriately
monitored, and mutual accountability installed. In summary, the
annual Monitoring Report should:
- provide each year a
means of assessing progress - serve as a major tool for the
High-Level Group to discharge its monitoring responsibility -
use indicators that are relevant and underpin the High-Level
Group's monitoring role - take an analytical and in-depth
approach - provide precise data of high quality, based on
national input - provide national and aggregated data - show
which countries are doing well and why, and identify best
practices - examine EFA experiences with a view to learning
lessons
UNESCO will coordinate the report,
shaping it by identifying and highlighting current issues or
regions/countries of concern, e.g. HIV/AIDS impact, countries
needing help with national plans. UIS will have a central role in
providing high quality and accurate data.
Role
and nature of the High - Level Group
From the start of the
meeting,participants raised questions about the nature and role of
the group.The last session of the meeting provided an opportunity
for an in-depth exchange of views on this issue.As far as this
first meeting of the Group was concerned,it provided an
opportunity to bring together,at UNESCO ’s instigation,an
appropriate representation of EFA actors (developing
countries,civil society,bilateral and multilateral agencies)and to
demonstrate the broad consensus around EFA and the Dakar goals;it
has re- expressed a collective commitment to EFA,thus maintaining
political will and momentum,and it has given donors the
opportunity to express and specify their commitments to EFA,in the
hearing of developing country governments.
The discussion
about the Group ’s role raised fundamental questions of global
governance, which UNESCO ’s Assistant Director-General for
Education, John Daniel,addressed.He distinguished between
governance (generating political will and momentum) and management
(day-to-day organization of the work), and asked whether a global
governance structure for education is necessary or desirable.Such
a structure might restrict existing multilateral and bilateral
agencies in their priorities.However,management structures will
carry EFA work forward coherently,particularly if well plugged
into government and agency institutions.Formal structures for this
purpose include this High-Level Group and the EFA Working
Group,while informal arrangements include ad hoc groups looking at
various aspects of EFA.These various structures work because
partners are willing to cooperate,so the question becomes:how can
the management of EFA be improved?
Given the importance of
involving the private sector in supporting the EFA movement,it was
recommended that special effort should be made to invite private
sector stakeholders to the High-Level Group.
Participants
made suggestions as to the role and function of the Group,as well
as about its structure and process,as follows:
In terms of
function and role,the High-Level Group should
- generate political
commitment at the highest levels - ensure that the Dakar goals
are operationalized - act as a catalyst for resource
mobilization for EFA - keep on track the efforts of all the
partners and monitor the contributions of all partners - use
its legitimacy under the auspices of UNESCO and as part of the
United Nations system to call others, such as donors and other
international and regional agencies,to account for their part in
EFA - examine an analytical presentation of EFA progress using
the Monitoring Report - identify and address problems in
progress towards EFA goals - focus on problem-solving and
lesson-learning set time-bound goals and specify actions to
enhance efficient achievement of EFA targets
In terms of
structure and process the High-Level Group
could be
smaller,possibly around 15 people,in order to facilitate more
focused discussion,while maintaining its representative nature
- should,whatever its size,adopt a working style and process
to foster genuine and open dialogue - should be a place of
interactive discussion,with written statements/speeches being
handed out,not presented orally - should meet annually to
examine and act on the Monitoring Report - should be flexible
- should enable continuity of membership,while also allowing
for change of membership over time
The discussion about the
Group ’s role raised fundamental questions of global
governance,which UNESCO ’s Assistant Director-General for
Education,John Daniel,
addressed. |
An observer's viewpoint
This report would
not be complete without an attempt to capture the tone and ethos
of the meeting — this section seeks to do that,based on
observations of some of those not directly involved in the debate.
An encouragement :this meeting was ready for
action! This was expressed in the cooperative spirit which
prevailed throughout the two days.The full participation of all
the different actors contributed to a spirit of mutual respect and
dialogue.Civil society was recognized to be a full partner in EFA
forums,for planning,policy development,implementation and
monitoring,even if some national contexts need encouragement to
move away from restricting or resisting the involvement of civil
society.For its part, civil society pledged to work with
governments and the multilateral agencies in finding solutions and
monitoring progress.Concrete commitment came in the form of
specific public pledges,made during the meeting,on the part of
several bilateral and multilateral donors,to increase their
financing for various aspects of EFA.
An ambivalence
:two of the Dakar goals address levels of adult literacy,a
point which UNESCO ’s Director-General recalled during the
meeting.It was noticeable that non-formal education and literacy
were mentioned in the papers or interventions by at least eight
participants from the South. However,they were mentioned hardly at
all by multilateral or bilateral agencies — non--formal education
and literacy seem to be high on the agenda of developing
countries, but not so visible on the donors ’ agenda.
An
affirmation (and a challenge!): there was a clear
acknowledgement of UNESCO ’s role in coordinating EFA efforts.This
included the coordination of partnerships, for example through the
High-Level Group and the Working Group,as well as using its
position to ensure that multilateral and bilateral partners follow
through on their financial commitments.It was clear from the
discussion that the group looks to UNESCO for intellectual
leadership also,particularly with regard to the conceptual
development of EFA and the formulation of strategies. Participants
called on UNESCO to be a source of inspiration,as well as to
communicate its plans clearly and transparently. In contrast to a
year ago, UNESCO ’s efforts in EFA coordination were recognized,
and not merely recognized;questions were asked — and offers made —
about the level of resources which UNESCO needs to do the
job:staff,technical and financial inputs.These reactions
demonstrate on the one hand the crucial importance of the EFA
coordinating role and the high expectations of UNESCO in this
regard,and on the other hand,a new spirit of confidence that
UNESCO is up to the challenge.
Conclusion
In the concluding
session,UNESCO ’s Assistant Director- General for Education
enumerated five action points arising out of the meeting for
UNESCO and Member States:
1- Preparing national EFA plans
is the means to accelerate progress towards the Dakar goals.
2- Building on existing structures,partners at country
level must develop criteria for assessing progress.
3- A
comprehensive strategy to operationalize the Dakar Framework for
Action will be prepared by March 2002.This will spell out
time-lines,integrate flagship programmes,show linkages between
activities and present the final formulation of the global
initiative.
4- UNESCO will prepare an authoritative
Monitoring Report ,after first devising a scheme for managing and
processing the report ’s preparation.
5- UNESCO will
continue to dialogue about the structure and form of the
High-Level Group,taking into account this first experience and the
observations made.
The principal output of the meeting was
the Final Communiqué (for full text see Appendix 2)which was
adopted unanimously after discussion.Apart from questions of
clarification of wording and of harmonization of the English and
French versions,most discussion centred on the nature and
composition of the Task Force mentioned in the third
recommendation of the Communiqué:who would be a member and to whom
does it report?The Lead Manager of the Dakar Follow-up Unit
clarified that the Task Force would have fewer than fifteen
members drawn from the different constituencies represented at the
High-Level Group,namely developing countries, industrialized
countries, international agencies and civil society,and that,as
far as possible,it would meet virtually and draw upon the work
initiated in this regard by the second WGEFA in its meeting of
September 2001.The Assistant Director- General for Education said
that the Task Force will report to the Director-General of
UNESCO,who has the mandate to coordinate EFA efforts.The
High-Level Group accepted these clarifications and agreed to
review the progress of the Task Force at its next meeting.Wording
to this effect was inserted into the text of the
Communiqué.
The Director-General of UNESCO concluded the
proceedings,in the presence of the President of UNESCO ’s General
Conference and of the Chair of UNESCO Executive Board,by thanking
all the participants for their contributions to the meeting and
their commitment to Education for All.
The principal output of the
meeting was the Final Communiqué which was adopted
unanimously after discussion. |
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