Haiti SABER DRAFT Country Report SCHOOL FINANCE 2017 Policy Goals Status 1. Ensuring basic conditions for learning There are minimum standards for physical learning conditions for new primary schools and minimum qualifications for primary and secondary teachers; learning goals do not exist neither for primary nor for secondary education. 2. Monitoring learning conditions and outcomes There are mechanisms to monitor learning conditions in schools. National standardized tests and international assessments are conducted regularly, but results are not used for decision-making. 3. Overseeing service delivery There are mechanisms to verify the number of effective school days, but not to monitor timely distribution of textbooks and resources for infrastructure. Teacher absenteeism is monitored, but there are no penalties, and no substitute teachers are provided for short-term absences in the public sector. 4. Budgeting with adequate and transparent information The government prepares projections of the education budget, but it is developed without clear criteria or comprehensive breakdown. Budget information is not timely shared with sub-national levels. Key programs such as tuition waivers and school feeding financed directly by international organizations are off-budget. 5. Providing more resources to students who need them With support from donors, the government provides more resources to socio- economically disadvantaged students such as tuition waivers and school feeding. Due to lack of public or publicly-subsidized schools, households spend a high share of their spending on education. 6. Managing resources efficiently There is a procurement framework for school construction. There is no policy to regularly update the personnel database. Education spending is externally audited, but results are not used to improve resource management, and there are no penalties for failed audits. THE WORLD BANK Overview of SABER-School Finance education area under the direct control of education All education systems rely on financing to function, but the policymakers. Where possible, SABER−School Finance also characteristics and actions of a successful school finance incorporates measures of policy implementation at the system are not always clear. Research has often failed to central level, although other larger−scale surveys at the find a strong relationship between spending and learning local and school level would be necessary to do a full outcomes in education, which leads some researchers and analysis of implementation. policy makers to question whether the amount of spending To describe the essential functions of an education finance in education matters at all (Hanushek 1986). Among system, SABER−School Finance collects information in five countries with similar levels of income, those that spend data collection areas: (i) School Conditions and Resources; more on education do not necessarily score higher on (ii) Allocation Mechanisms; (iii) Revenue Sources; (iv) international assessments such as the Program for Education Spending; and (v) Fiscal Control and Capacity. International Student Assessment (PISA). Even within an These core areas follow resources for education education system, student achievement can vary throughout the complex funding cycle, although related substantially among localities that spend comparable activities do not always occur sequentially. amounts (Wagstaff & Wang 2011). The observation that learning outcomes are seemingly unrelated to spending After identifying how a particular education finance system levels supports the argument that how money is spent, not functions, SABER−School Finance determines the extent to simply how much, matters in education finance. which the system effectively provides resources so that all children can learn, using six policy goals widely shared Although the availability of financial resources does not across countries: (i) Ensuring basic conditions for learning; guarantee quality education, it is impossible to achieve this (ii) Monitoring learning conditions and outcomes; (iii) goal without adequate resources (Reschovsky & Imazeki Overseeing service delivery; (iv) Budgeting with adequate 2001), which often come from public sources. Education and transparent information; (v) Providing more resources spending comprises a large share of government to students who need them; and (vi) Managing resources budgets—particularly in low−income countries, where 18 efficiently (see Figure 1). These policy goals reflect percent of public expenditures, on average, is devoted to actionable ways that systems can follow to achieve the education (EdStats 2011). Governments are responsible for three well−known foundational concepts in school finance: using these public funds in a way that promotes the highest adequacy, equity, and efficiency. Progress towards each of possible learning levels, especially given the pressure these goals is measured by policy levers, which are actions placed on budgets by the global financial crisis and a government can take to improve its education finance continuing economic volatility. Understanding how to use system. This country report uses this framework to assess resources for education wisely should thus be a top priority the education finance system in Haiti. for education policy makers. Figure 1. SABER-School Finance Framework The Systems Approach for Better Education Results Ensuring basic (SABER)− School Finance informs this conversation with a focus on the policies that drive performance in a school finance system. It collects, analyzes, synthesizes, and Monitoring learning disseminates comprehensive information on school Managing resources conditions and finance policies in primary and secondary education across different education systems. Our goal is to enable policymakers to learn about how other countries address School the same policy challenges related to school finance and Finance thus, how to make well−informed policy choices that will Providing more lead to improved learning outcomes. To this end, SABER−School Finance’s framework primarily examines education finance policies, relying on key informants and Budgeting with official document review to map out the policy landscape. In doing so, it provides new data that illuminates a key THE WORLD BANK Education context in Haiti (See Table 1). Only the first and second cycles of primary Achieving universal primary education, increasing access are compulsory. to secondary, and improving quality remain as challenges for the Haitian education system. In 2010, Haiti was struck The implementation of the law is governed by the by a devastating earthquake that affected more than 4,500 Operational Plan (2010-2015), which the Ministry of schools of the nation’s 15,000 primary schools and 1,500 Education is currently updating for the next ten-year secondary schools, and left nearly 200,000 children out of period. It is expected that this new Operational Plan is also school (Reliefweb, 2010). Although primary net enrollment aligned with the 12 Priority Measures for the education has increased over the last decade, from about 50-60 sector approved by the government in 2014 and that it percent in the early 2000s to 70-80 percent in 2012, outlines concrete actions and activities to achieve them. repetition and overage rates continue to be rampant The 12 Priority Measures describe the main actions that the (World Bank 2014). Children start primary school two years government will pursue to improve the quality of education late on average, and fewer than 60 percent complete in Haiti. secondary education (Adelman et. al 2015). Additionally, learning outcomes are low. For example, 25 percent of Education financing system in Haiti sixth-graders and 28 percent of ninth-graders failed the Due to limited public provision of education services, national exams. Similarly, a nationally representative Early three quarters of primary and secondary students are Grade Reading Assessment (EGRA) administered in 2016 enrolled in non-public schools. In Haiti, schools are very found that 42 percent of students could not read a single diverse and are run by the government, communities, word of Creole at the end of second grade. religious groups, non-governmental organizations (NGOs), or for-profit institutions (see Tables 2 and 3). Public schools, Institutional context consisting of 16 percent of primary and secondary schools The main law that governs the system is the Organic Law of serving 24 percent of students, do not charge fees to the Ministry of Primary and Professional Education families. Non-public schools, on the other hand, usually (hereinafter Ministry of Education) of 1989. This law require tuition fees that are paid either by households or establishes that the Ministry of Education is responsible for through subsidies by religious organizations, NGOs or international organizations (see Table 4). Since public Table 1: Structure of the pre-primary, primary and secondary education systems provision is not enough, many families opt for non-public schools, which serve 76 percent of primary school students Preschool and 73 percent of secondary students. In these schools, Level/Cycle Grade Age families not only pay tuition, but also other costs, such as Levels Small (Petit) 3 years transportation, books, and uniforms. Medium (Moyen) 4 years Big (Grand) 5 years Table 2: Number of schools and students by type of school Primary management at the primary level First cycle First (Premier AF) 6 years Public Non- Second (Deuxième AF) 7 years Type of school Total Third (Troisième AF) 8 years schools public Fourth (Quatrième AF) 9 years Total students 688,869 2,200,681 2,889,550 Second cycle Fifth (Cinquième AF) 10 years Total schools 2,710 14,319 17,029 Sixth (Sixième AF) 11 years Non-religious 2,173 4,801 6,974 Third cycle Seventh (Septième AF) 12 years Faith-based 96 6,038 6134 Eighth (Huitième AF) 13 years Community- Ninth (Neuvième AF) 14 years 107 2,585 2,692 managed Tenth (Dixième AF) 15 years Undefined 334 895 1,229 Secondary Source: Ministry of National Education and Professional Education Levels First (Premier) 16 years (MENFP). 2015. Statistical Yearbook (2013-2014). Port-Au-Prince: Second (Deuxième) 17 years DPCE. Terminal (Terminale) 18 years Source: Adapted from Ministry of National Education and Vocational Training (2007). La Stratégie Nationale d’Action pour l’Education Pour Tous. Port-au-Prince: MENFP. overseeing the education system, which is divided into four main levels: preschool (3-5 years old); primary (6-15 years old); secondary (16-18 years old) and tertiary or university SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 Table 3: Number of schools and students by type of school example, in 2013, Honduras and Belize invested 5.9 and 6.2 management at the secondary level percent of GDP in education alone, respectively. Similarly, Public Non- Barbados spent 6.7 percent on education in 2014 (EdStats Type of school Total schools public 2017). Total students 73,513 198,703 272,216 Total schools 260 4,585 4,845 The government heavily relies on external donors to Non-religious 240 2,440 2,680 finance education. Sources of revenue include property Faith-based 5 1,688 1,693 income, and sales taxes (Decree Establishing the General Community- Budget 2015-2016). However, tax collection efforts are 0 367 367 managed limited, and historically, international actors such as the Undefined 15 90 105 World Bank, UNESCO, Canada, the European Union, and the Source: Ministry of National Education and Professional Education Inter-American Development Bank, among others, finance (MENFP). 2015. Statistical Yearbook (2013-2014). Port-Au-Prince: DPCE. education activities in Haiti through projects, loans, and Table 4: School classification by type of financing grants. After the earthquake of 2010, the international community strengthened its financial support to the School classification by type of financing Haitian education system. Financing provided by Type of school Source of funding Tuition and fees international donors has mostly focused on increasing Public schools 100% from No tuition enrollments at both primary and secondary education government budget levels through joint-programs such as tuition-waivers, Non-public Funding comes from Tuition and fees school feeding, and school construction. In 2016-2017, schools sources different than are charged the government donor financing accounted for approximately 23 percent of Publicly- Subsidy by multilateral Subsidized and the budget of the Ministry of Education (see Figure 3). In subsidized organizations through some fees paid fact, domestic resources covered mostly operating costs the government by parents while international funds financed more than half of the Privately- Direct subsidy by Subsidized and investment costs (see Figure 4). Nearly half of the subsidized religious organizations some fees paid investment financing comes from multilateral organizations or NGOs by parents such as the World Bank and the Inter-American For-profit Parents Parents Development Bank, and the other half from bilateral Source: Ministry of National Education and Professional Education organizations, especially, from the Canadian government. (MENFP). 2015. Statistical Yearbook (2013-2014). Port-Au-Prince: DPCE. Figure 2: Household education expenditures by socioeconomic Figure 3: Domestic vs. External Financing status (2016-2017 budget) Education expenditures by type (ages 6-14) 100% 90% 23% 80% 77% 70% Other 60% Transport 50% External financing Domestic financing Uniforms 40% Books Figure 4: Current vs. Capital budget 30% 20% Tuition (2015-2016 actual / 2016-2017 budget) 10% 0% 25 Billions Poor Not Poor 20 Source: World Bank staff estimates using ECVMAS 2012. 15 10 Haiti’s public education expenditures are low compared 5 with those of other countries of the region. According to a - World Bank report (2015), the government devotes only 2015 -2016 2016-2017 Current budget Capital budget about 5 percent of GDP to the combined expenditures of education, health, and social protection. This is low compared with other countries from the region. For Source: World Bank calculations based on BOOST database SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 Haiti’s School Finance System Results decision−making about spending. First, successful education systems document learning conditions and use Goal 1: Ensuring basic conditions for these data to redirect resources to the neediest schools or learning to act in schools that are not providing the specified inputs School finance systems should create an (see Box 2 for an example from the United Kingdom). Data environment to support and promote are particularly useful to encourage objective learning for all students. To do so, successful education decision−making in challenging political economy systems define minimum standards for inputs to ensure environments. As more data become consistently available, basic conditions for learning and provide adequate policymakers are more likely to use them (Crouch 1997). resources to meet the standards. Successful systems also Second, successful systems use student achievement data set goals for students’ learning outcomes. In these systems, to identify schools in need of greater monetary and human standards for inputs and student learning outcomes drive resource investment to improve student performance. the effective use of resources. SABER−School Finance uses Hence, knowing which inputs are available will inform two levers to assess progress in this goal: (1) Are there school finance policymakers about how funds are being policies to provide basic inputs? and (2) Are there used at the school level, and access to assessment results established learning goals? will show whether funds are being used effectively. SABER−School Finance uses two levers to assess progress in (1) Haiti recently approved policies that established this goal: (1) Are there systems in place to monitor learning minimum standards for physical learning conditions for all conditions? and (2) Are there systems in place to assess new primary schools as well as minimum qualifications for learning outcomes? teachers. In 2014, the Ministry of Education approved the Practical Guide for Conception and Creation of Primary (1) Haiti collects information on learning conditions Schools for both public and non-public primary schools. annually, including administrative school data. Since 2010, While it established infrastructure standards for new the Haitian government has conducted almost a yearly construction, including access to water, electricity, hygienic school census, which covers both public and non-public facilities, libraries, and anti-seismic conditions, it did not schools from preschool to secondary education across specify standards for existing facilities. Additionally, there is Haiti. The census also collects data on availability of a policy that regulates the provision of textbooks and the textbooks, libraries, qualified teachers, computers, water, availability of libraries for primary schools. However, when hygienic facilities, and electricity in schools (School Census it comes to secondary schools, there is no policy governing 2013-2014). Data is collected mainly through interviews to either hard or soft learning conditions at all. In terms of school principals. The government and the international human resources, the National Policy for the Education of donor community use the data collected by the census to Teachers and Principals (2015) requires a diploma from a inform decision-making, especially to guide school Teacher Training School (Écoles Normales Superior) for construction plans. primary teachers and a university degree for secondary teachers. However, the data is processed and disseminated with substantial delays, and the information is often of poor (2) In Haiti, there are no student learning goals. In the quality or incomplete, as no data quality checks exist in past, policies focused on increasing enrollments. Only the process of data collection. Because the school census recently, did the government approve 12 Priority Measures is collected via paper and in a completely voluntary manner, to improve the Haitian Education System (National Pact for data is often incomplete and submitted very late. Limited Education Quality, 2016-2020). Although these measures capacity within the Ministry to process the data compounds aim at reforming the education sector and improving these challenges, and most census results have not been quality through teacher certifications, teacher trainings, made publicly available. In addition, schools do not have school quality certifications, and new student evaluation unique identifiers that are consistent across years, making measures, they do not set precise student learning goals. it very difficult to track changes in individual school conditions over time. Goal 2: Monitoring learning conditions and The Haitian Institute of Statistics and Informatics (IHSI) outcomes also periodically collects data at the household level, Accurate information on learning conditions including primary and secondary attendance of disabled and outcomes is necessary for informed children and youth. Even though Haiti collects SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 disaggregated data that contributes to identifying Examination (EGMA) have been conducted since 2007 by disadvantaged students, including those with special needs, various organizations with support from the United States the government does not use it to inform decision-making Agency for International Development (USAID) and the on how to provide better learning conditions for disabled World Bank. In Haiti, international organizations such as students. In addition, this type of data is only collected Save the Children and Concern Worldwide have also periodically depending on external financing—the most performed student learning assessments but not on a recent data currently comes from the 2012 household regular basis and not on representative samples. Although survey. international organizations are likely to continue sponsoring the administration of these standardized tests Box 2. Collection and use of school facility data in the United in the short- and medium-term, there is no policy in place Kingdom to guarantee their long-term sustainability. The same United Kingdom’s Office for Standards in Education, happens with a student assessment carried out with the Children’s and Services and Skills (OFSTED) support of the Inter-American Development Bank for the 4th grade. In 2004, the United Kingdom incorporated analysis of school facility data into its school improvement framework. School Goal 3: Overseeing service delivery inspections and self−evaluations were major components of this reform. The reform created the Office for Standards in An efficient school finance system should Education, Children’s Services and Skills (Ofsted) to monitor confirm that financial resources are whether schools have met standards in learning outcomes, converted into adequate service delivery at student well−being, school facilities, and other areas. The the provider level, including how much time children spend central level uses these data on inputs, intermediate outputs, in school, how timely the distribution of instructional and outcomes to monitor progress towards national targets materials (especially, textbooks) is, and how efficient school and to inform the external inspection of individual schools by construction expenditures are. Otherwise, there is no the national Ofsted inspectorates. Schools are also able to guarantee that reported public expenditure on education analyze their performance with RAISEonline, a tool that provides interactive analysis of school and student even reaches schools and ensure teacher attendance, let performance, as well as comparisons to peers. alone that resources are used well to provide schooling. Source: Adapted from Ofsted. (2011). “Who we are and what we do.” Available Research shows that increases in instructional time are online: http://www.ofsted.gov.uk. linked to learning gains across subjects and settings and that having access to learning materials such as textbooks (2) Haiti conducts regular student learning assessments, have better learning outcomes (Lavy 2010; Bellei 2009; but results are not used for policy-making, and are limited Cerdan-Infantes & Vermeersch 2007; Labbé 2007; Leung to the few students that make it to the end of secondary. 2005). So, it is imperative that school finance systems have The National Bureau of State Exams (BUNEXE) within the mechanisms to measure the quality of service delivery at Ministry of Education is responsible for conducting yearly the school level. SABER−School Finance examines these standardized tests to measure student learning in 6th and mechanisms using two levers: (1) What mechanisms are in 9th grades. These tests are applied to a representative place to verify the availability of physical resources at sample of students and measure student competencies in schools? and (2) What mechanisms are in place to verify the French, Creole, Mathematics, History, Biology, Chemistry availability of human resources in schools? and English. Assessment results are disaggregated by subnational level, but not by school or student (1) Mechanisms to monitor physical resources and demographics. These results are made available for ensure their timely distribution are unclear in Haiti. Zone decision-makers, but are not used to inform policies, inspectors must visit schools quarterly to monitor the allocate resources, or disseminate across regional number of effective days, supervise schools’ infrastructure departments and schools to guide teaching and learning. conditions, and teaching practices. However, there are no Moreover, by the 6th grade, a large share of students have mechanisms to collect information on the delivery of already dropped out, limiting the government’s ability to education services throughout the school year, such as the use results from these exams to improve learning for all situation of textbooks inventories. Without an effective students. mechanism to verify the availability of textbooks at the beginning of the school year, the Ministry of Education is In addition to the Ministry’s efforts, the Early Grade unable to ensure their timely distribution (see Box 3 for a Reading Examination (EGRA) and Early Grade Mathematics good practice example). SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 Box 3: New procedure of textbook inventory in DC public budgeted resources was actually spent (outturn) and the schools amounts of revenue expected from various sources, and In Washington, DC, a new procedure for textbook inventory provide timely information to sub-national and local increased the share of public schools with textbooks at the governments to allow for planning. SABER−School Finance start of the school year from less than half to almost all of uses two levers to assess progress in this policy goal: (1) Is schools through increasing staffing at the warehouse where information used to inform the budget process? and (2) Is books are stock and instituting a common electronic form for schools to submit order rapidly (Labbé 2007). the budget comprehensive and transparent? Most of the school construction expenditure is currently (1) The budgeting process in Haiti could be improved by financed by international organizations who provide using more information. In Haiti, current and capital funding to support school construction since the budgets are managed by different units within the Ministry earthquake. However, there are no mechanisms in place to of Education. The Studies and Programming Unit oversees constantly monitor contractor’s progress, especially in the capital budget, which is classified by item and source of remote and rural areas, where school constructions tend to funding, whereas the Budget Service manages the current be delayed. School construction expenditures should be budget. The latter consolidates budget requests from all monitored throughout construction processes to hold the units, including technical and regional offices, and submits project’s expenditures to the estimated budget and them to the Ministry of Finance. No policy is in place to timeframe. determine which criteria should be considered while developing the education budget request. Budget (2) By policy, teacher attendance is monitored in Haiti, negotiations and final approvals are based on the priorities but substitutes are only available for long-term absences. established by the Ministry of Finance and donor funding In Haiti, according to policy, each decentralized department availability. reporting to the Ministry of Education has an inspectorate The Ministry of Education develops five-year projections for unit. Inspectors monitor teacher attendance through education expenditures through its Operational Plan. These announced and unannounced visits (Governance Manual budget projections include current and capital expenditure 2015; World Bank and Ministry of Education and Vocational for primary and secondary education, and are drafted Training 2016). Furthermore, principals also supervise their taking into consideration financial commitments from teachers and keep records on their attendance. However, international donor organizations. This allows predictability there are no penalties for teacher absenteeism. There is no of funding over time (see Box 4 for a Korean example of policy on substitute teachers for short-term absences, Medium-Term Expenditure Framework). though there is one for long-term absences. Box 4. Success of the medium-term expenditure framework (MTEF) in Korea Goal 4: Budgeting with adequate and After public finance reforms beginning in the mid−2000s, transparent information Korea has experienced success using an MTEF. The national fiscal management plan (NFMP) covers five years and is Governments should provide guidelines for revised annually for all sectors, including education. To budget planning procedures and allocation prepare the NFMP proposal, the cabinet first determines the criteria. Although the Ministry of Finance total planned expenditure and provides expenditure ceilings typically sets the overall allocation of resources for to each sector. Lastly, each sector prepares a budget proposal education in most countries, sound budget preparation that reflects policy priorities and budget ceilings. The NFMP requires participation from many actors in the school has helped to create consensus building across sectors and finance system, including central and subnational maintain fiscal sustainability. Source: Adapted from Jin, Yang−Hyun (2011). Korea’s Experience with education authorities. Throughout the process, information Medium−Term Expenditure Frameworks. Available online: http://blog- is essential to develop a budget that reflects sector pfm.imf.org/ priorities and to communicate it to education stakeholders. The national government finances the education system. International best practices suggest that budgets include Subnational and local governments do not generate economic, administrative, functional and programmatic revenues for the education sector. By policy, revenues from budget classifications. A clear and rule-based funding international organizations cannot be used to pay teacher method would help allocate resources strategically and salaries and/or extracurricular activities. These funds are transparently and make the education system accountable invested mostly in school operations through tuition waiver (Alonso & Sanchez 2011). Also, successful education programs and school feeding and in infrastructure finance systems report on what share of the previous year’s improvements. As in most countries, teacher and other SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 personnel salaries still make up the bulk of the education demand side to reduce fees may increase the opportunity budget, and teacher salary arrears remain a major for the poorest and girls to attend school (Kattan 2006). challenge for the government. SABER−School Finance considers two policy levers that education systems can use to distribute funds according to (2) The education budget is not comprehensive. Haiti’s students’ needs: (1) Are more public resources available to education budget is categorized by administrative and students from disadvantaged backgrounds? and (2) Do economic classifications, but leaves out functional and payments for schooling represent a small share of income programmatic classifications. It includes only some of the for low income families? key financers such as the World Bank and UNESCO, but omits others such as the Inter-American Development Bank (1) The major government- and donor-financed tuition who have become increasingly relevant since the waiver programs use a self-targeting mechanism to earthquake. Additionally, some crucial operational costs support more disadvantaged students, but both programs such as tuition waivers are off-budget. There is no are quickly phasing out. The government program, mechanism to account for all current education Programme de Scolarisation Universelle Gratuite et expenditures (See Goal 5). Annual budget reports do not Obligatoire (PSUGO) and the donor-financed Education provide breakdown by source of funds at subnational, local Pour Tous (EPT) program have both been in place for and school levels. Policies mandate reports on the planned several years, providing a per-student tuition waiver for budget and its execution throughout the year, but these students to attend low-cost private schools. However, EPT reports are only partially made available to the public will end in 2018 as donor financing phases out, and PSUGO, through the website of the Ministry of Finance. This poses which in principle could have expanded to replace donors, a challenge to the education system because there is no stopped financing waivers in 2016 due to mounting adequate information on budget planning or execution that program debts. A new program that would finance tuition clearly establishes how much is spent on education in Haiti. congress and that will replace PSUGO is being designed and its funding come from the same that PSUGO was using. Policy establishes that intergovernmental transfers to regional units and reporting should take place on a The government, with support from the international quarterly basis. In Haiti, there is no policy to provide timely community, has implemented programs to provide more information to subnational and local governments. This funding to students from the most socio-economically may be because the Ministry of Education lacks financial disadvantaged backgrounds and for students with resources to regularly transfer funds to regional disabilities. To increase attendance, the government, departments. Transfers only occur on a case-by-case basis supported by international organizations, developed a when there is a need to finance specific project or activity. school feeding program that has successfully contributed to These ad-hoc transfers may or may not be planned in the school attendance. The details of the program vary across budget, and funds usually come from international implementing entities, but generally involve the provision organizations, in which case reports on fund execution are of a hot midday meal. Although plans have been drafted to written to comply with donor requirements. In practice, ensure that programs are sustainable over time, it is when transfers do occur, it is unclear whether subnational unclear whether Haiti will be able to maintain it when and local governments receive timely information on the donor funding is not available. In addition, the Operational amount of funds that they will have to execute. Plan 2010-2015 defines policies to expand access to Goal 5: Providing more resources to education services for disabled children and youth, including how to improve school facilities to serve disabled students who need them students and providing adequate training to teachers on Promoting equity in financing of education is the basic principles of special education and differentiated essential for several reasons. Access and the instruction. opportunity for success in education should not depend on a student’s background. In many countries, however, (2) A relatively higher proportion of students from poor socio−economic background, as well as other non−school families attend free public schools—40 percent, compared factors, is the most important determinant of completion to only 22 percent of the non-poor—but the rest go to and learning by students (Glick & Sahn 2009; Filmer 2008; private schools that charge fees. Although public schools Patrinos & Psacharopoulos 1992). Additional resources in are free in Haiti, non-public schools charge various types of schools may compensate for disadvantaged backgrounds fees for tuition, matriculation, and assessments. The (Baker & Green 2008; Rivkin, et al. 2005). Efforts on the government does not regulate school fees. To help SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 disadvantaged children to attend school, in partnership audits. No penalties exist in case of failed audits. Also, audit with international organizations, the government has results are not taken into account in decision-making. created tuition-waiver programs. However, even in cases where tuition waivers are available, families are expected Summary and Policy Options for Haiti to assume the costs of uniforms, meals, and other Haiti has developed useful policies in several important expenses, which is a considerable burden on poor areas related to school financing along the painstaking households. Both the richest and the poorest households recovery process after the devastating earthquake in 2010, spend around 10 percent of their total annual income on and more recently the devastating effects of Hurricane education (IHSI 2012). Matthew in October 2016. However, school financing mechanisms can be strengthened to improve adequacy, equity, and efficiency. Recommendations to guide Haiti on Goal 6: Managing resources efficiently how to achieve SABER-School Finance policy goals may be found below. Experience in developing and developed countries has shown that providing resources is not enough Box 5. Main Findings to ensure good learning outcomes. Well−developed school finance systems also include governance arrangements School Finance Policy Goals Progress that can hold all parties accountable for using resources Ensuring basic conditions for efficiently for their intended purposes. First, it is essential learning to have competitive and transparent procurement Monitoring learning conditions procedures and monitoring mechanisms for capital and outcomes investment. Second, as teachers’ salaries account for the majority of education expenditures in many systems, it is Overseeing service delivery necessary to maintain an updated personnel database and Budgeting with adequate and check it against the payroll database at least every other transparent information month throughout the year. Then, measures to hold actors Providing more resources to accountable are necessary to ensure efficient use of public resources throughout the system (see Box 4 for the use of students who need them payroll). SABER−School Finance uses two policy levers to Managing resources efficiently assess the efficiency of the expenditure process: (1) Are there systems in place to verify the use of educational resources? and (2) Are education expenditures audited? Goal 1: Ensuring basic conditions for (1) There is a procurement framework for school learning construction in place, but personnel and payroll databases Haiti has minimum standards for basic physical learning can be improved. In line with best practices and multilateral conditions and teacher qualifications. However, the organization’s requirements, the legal framework for physical standards regulate only the construction of new procurement makes open competition the default method primary schools. It is important that the government of offering contracts in construction projects financed by develops a regulation that also covers existing schools as multilateral organizations. In addition, opportunities to bid well as secondary schools to ensure safety and minimum for contracts are publicly announced, and there is a defined learning conditions. Haiti does not set performance goals process to submit and address complaints. In Haiti, the for student learning either at primary or secondary level. It policy that mandates how often to update the personnel is essential to set learning goals, such as proficiency scores, database hosted by the Ministry of Education is not clear. to track progress. Additionally, it might be different from the one that the Ministry of Finance uses to transfer salaries directly to all Goal 2: Monitoring learning conditions and teachers. Due to outdated databases, teachers do not get outcomes paid on time. This may be a cause for teacher absenteeism Haiti has made some progress towards achieving this goal. and lack of motivation. By applying a regular school census, the Ministry of Education can monitor whether schools provide adequate (2) In Haiti, external audits are in place, but internal auditing conditions for learning and comply with the policies systems do not exist. By policy, the Haiti’s Superior Court mentioned in Policy Goal 1. However, the quality and speed of Auditors and Administrative Disputes carries out yearly of data collection, processing, and dissemination could be SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 improved substantially; some successful experiences on feeding. In addition, the central government should inform this are available in the country through the EPT program. the newly created subnational governments timely about potential future intergovernmental transfers. In addition, although Haiti conducts student learning assessments, their results are not used to inform decision- Goal 5: Providing more resources to students making. Results should be made widely available to schools, who need them families and students in simplified formats to increase the Given that the public education system is limited and many accountability of the system, and to improve the quality of parents send their children to expensive non-public education through strengthening school management and schools, households in Haiti spend a high share of their planning. spending on education. Under this circumstance, the tuition waiver and school feeding programs that assign Goal 3: Overseeing service delivery more resources to the most vulnerable students in Haiti Although the central government mandates that zone have proven to successfully increase student attendance. inspectors quarterly visit schools to monitor schools’ The weakness of these programs is their high dependence infrastructure conditions, the number of effective days, and on resources from the international donor community. As teacher attendance, among others, monitoring results are international support may decline in the future, the not necessarily used to improve the quality of service government will need to develop a medium-term plan to delivery. In order to tackle this situation, the government institutionalize them and make them sustainable, possibly should move towards establishing a clear and specific with further targeting to the most vulnerable. quality assurance framework linked to consequences for both public and private schools that also clarifies the roles Goal 6: Managing resources efficiently of supervisors and regional offices in monitoring schools in Although the government has developed a procurement the non-public sector. framework for school construction following requests by international donors, the management of other resources Goal 4: Budgeting with adequate and can be improved. First, the Ministry of Education needs to transparent information regularly update the personnel database, which should be With support from the international donor community, the linked with the payroll database of the Ministry of Finance government prepares five-year projections for education to ensure timely and transparent salary payments. In budget. However, it is developed without clear allocation addition, despite the existence of external financial audits, criteria or comprehensive budget classifications. Since their results are not used to improve the efficiency and some of the major donor-funded programs are off-budget effectiveness of education spending. The education system and directly go to schools, it is difficult to track total would greatly benefit from better planning on how to use education expenditures. It is essential to develop a more audit results to improve the management of resources. comprehensive budget and a database that records all Internal auditing would allow for detailed financial education expenditures coming from both internal and monitoring within the Ministry of Education and an external sources and along with more detailed breakdown. increased ability to identify areas of improvement. The budget could include education expenditures from the essential programs such as tuition waivers and school SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 Acknowledgements World Bank. Glick, P. and Sahn, D. E. (2009). “Cognitive skills among This report presents findings on the strengths and children in Senegal: Disentangling the roles of schooling weaknesses of the education finance system in Haiti. To and family background.” Economics of Education collect the necessary information, Carlos Mejía (Consultant) Review 28(2), 178− 188. interviewed respondents with knowledge of education Hanushek, E. A. (1986). “The Economics of Schooling: finance in Haiti and completed the SABER− School Finance Production and Efficiency in Public Schools.” Journal of data collection instrument developed in July 2012. The Economic Literature, 24(3), 1141−1177. report was written by Katherina Hruskovec (Consultant) of Institut Haïtien de Statistique et d´Informatique. (2012). the SABER− School Finance team, under the supervision of Enquête sur les Conditions de Vie des Ménages Après Sachiko Kataoka (Senior Economist, Global Education Seisme. Port-Au-Prince. Practice) with inputs from Juan Baron (Senior Economist, Kattan, R. B. (2006). “Implementation of Free Basic LCSHE). Education Policy.” Education Working Paper Series References Number−7. Washington, DC: The World Bank. Lavy, V. (2010). "Do Differences in Schools' Instruction Time Adelman, M. Baron J.D., Blimpo, M., Evans, D.K., Simbou, A. Explain International Achievement Gaps in Math, and Yarrow, N. (2015) “Why Do Students Learn So Science and Reading? Evidence from Developed and Little? Seeking Answers Inside Haiti’s Classrooms” Developing Countries." NBER Working Paper 16227. Policy Documents 96500. Washington DC: World Bank. Cambridge, MA: National Bureau of Economic Research Baker, B. D. and Green, P. C. (2008). “Conceptions of Equity (NBER). and Adequacy in School Finance.” In H. F. Ladd and E. B. Labbé, T. (2007). “Rhee Races to Deliver Most Books by Fiske (Eds.) Handbook of Research in Education Finance Monday.” Washington Post: Aug. 21. and Policy. New York, NY: Routledge. Leung, G. (2005). “Textbook Count and Civil Society Bellei, C. (2009). “Does lengthening the school day increase Participation: Effecting System Reforms in the students’ academic achievement? 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A., and Kain, J. F. (2005). "Teachers, Schools and Student Achievement." Econometrica, 73(2), 417−458. USAID. (2012). The Early Grade Reading Assessment in Haiti. USAID: Washington, D.C. Wagstaff, A. and Wang, L. C. (2011). “A Hybrid Approach to Efficiency Measurement with Empirical Illustrations from Education and Health.” World Bank Policy Research Working Paper 5751. Washington, DC: The World Bank. World Bank. (2015). Opportunities for all – Systematic country diagnostic. World Bank: Washington, D.C. World Bank. (2014). Haiti Poverty Assessment. World Bank: Washington, D.C. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 11 HAITI | SCHOOL FINANCE SABER COUNTRY REPORT |2016 www.worldbank.org/education/saber The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions, with the aim of helping countries systematically strengthen their education systems. SABER evaluates the quality of education policies against evidence−based global standards, using new diagnostic tools and detailed policy data. The SABER country reports give all parties with a stake in educational results—from administrators, teachers, and parents to policymakers and business people—an accessible, objective snapshot showing how well the policies of their country's education system are oriented toward ensuring that all children and youth learn. This report focuses specifically on policies in the area of School Finance. This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 12