90110 Uganda SABER Country Report WORKFORCE DEVELOPMENT 2012 Status Strategic Framework Strategic Framework is assessed at the “emerging” level, reflecting the finding that while political support for workforce development as an asset for economic progress is strong, the roles and responsibilities of key stakeholders in WfD remain fragmented; and the influence of businesses and industry in shaping and implementing WfD priorities is modest. System Oversight System Oversight is assessed at the “below emerging” level, reflecting the finding that competency-based testing and certification awaits implementation; that arrangements for institutional accreditation are still to be formulated; that measures for articulation among training programs are undeveloped; and that government funding is modest and allocations to institutions are neither linked to performance nor supplemented by other sources. Service Delivery Service Delivery is assessed at the “latent” level, reflecting the finding that while stakeholders have some influence over training curricula, their say in the operations of training institutions is limited; that private providers are allowed to operate freely but have few incentives to meet quality standards; and that a culture of monitoring and evaluation—one aided by reliable and freely available data—is not well-developed. THE WORLD BANK Table of Contents Executive Summary ……………………………………………………………………………………………………………... 3 Introduction ………………………………………………………………………………………………………………………… 4 Country Context …………………………………………………………………………………………………………………… 6 Overview of Benchmarking Results ………………………………………………………………………………………. 11 Detailed Results | Dimension 1 ……………………………………………………………………………………………... 12 Policy Goal 1 | Articulating a Strategic Direction for WfD …………………………………………………… 13 Policy Goal 2 | Prioritizing a Demand-led Approach ………………………………………………….............. 14 Policy Goal 3 | Strengthening Critical Coordination ………………………………………………………….... 15 Detailed Results | Dimension 2 ……………………………………………………………………………………………… 17 Policy Goal 4 | Diversifying Pathways for Skills Acquisition ……………………………………………….. 18 Policy Goal 5 | Ensuring Efficiency and Equity in Funding ………………………………………………….. 19 Policy Goal 6 | Assuring Relevant and Reliable Standards ………………………………………………….. 20 Detailed Results | Dimension 3 ……………………………………………………………………………………………… 22 Policy Goal 7 | Fostering Relevance in Training Programs …………………………………………………. 23 Policy Goal 8 | Incentivizing Excellence in Training Provision ……………………………………………. 24 Policy Goal 9 | Enhancing Accountability for Results .………………………………………………………… 25 Annex 1 | Analytical Framework of SABER-WfD ……………………………………………………………………. 26 Annex 2 | Benchmarking Scores …………………………………………………………………………………………… 27 Annex 3 | Acronyms ……………………………………………………………………………………………………………. 28 Annex 4 | Documents ………………………………………………………………………………………………………….. 29 Annex 5 | Informants ………………………………………………………………………………………………………….. 32 Annex 6 | Validation Workshop Report ……………………………………………………………………………….. 33 Annex 7 | Benchmarking Rubrics …………………………………………………………………………………………. 35 Annex 8 | Authorship and Acknowledgments………………………………………………………………………… 45 2 Executive Summary An Opportunity to Advance Uganda’s Skills Agenda Uganda’s economy has been growing steadily for the past two decades, bringing significant improvements in economic and social conditions. The gradual shift in economic structure from agriculture to industry and services, the development of agribusiness, tourism and “Uganda’s policies construction, and the recent discovery of oil deposits are all expected to increase the demand and institutions for skills. Against this backdrop the government has renewed its focus on technical and for workforce vocational education and training. The 10-year, $800 million Skilling Uganda Strategic Plan development grow (2012-2021), approved by the cabinet in December 2011, captures the scope of its ambition progressively and awaits support from the country’s development partners. The Plan seeks to reform the weaker as the Business, Technical and Vocational Education and Training (BTVET) sub-sector with the goal focus shifts from of fostering skills, raising worker and firm productivity, and increasing Uganda’s policy competitiveness in global markets in the coming decades. In an effort to deepen dialogue with conceptualization the Ugandan government on the challenges in implementing the plan the World Bank took to advantage of a new diagnostic tool, SABER-WfD, to assess the institutional bottlenecks that implementation.” stand in the way of success. 1 The results draw attention to a few priority areas for immediate action among those identified in Skilling Uganda. Prioritizing Next Steps for Impact “An urgent The SABER-WfD benchmarking results, summarized below, reveal that while the country’s priority is to political leaders are highly committed to WfD, the system’s capacity to deliver results is define the modus lamentably weak. Addressing all the gaps will require sustained effort and collaboration operandi for across multiple stakeholders inside and outside government. An urgent priority, however, is enlarging the role to define the modus operandi for enlarging the role of employers and industry stakeholders. of employers and Constituting and empowering an apex-level body to guide this effort would be a good start. By industry focusing initially on a few key economic sectors with high growth prospects, this body’s stakeholders in strategic quick wins in establishing effective partnerships between employers and training workforce providers would help clarify the operational arrangements for institutional autonomy and development.” accountability for results. Its experience would provide critical insights for the systemic transformation of the BTVET sub-sector in the coming years. 1 The initiative on Systems Approach for Better Education Results (SABER) addresses several policy domains, one of them workforce development (WfD). It was launched as part of the implementation follow-up to the World Bank’s Education Strategy 2020 which was published in May 2011. More details may be found at http://go.worldbank.org/NK2EK7MKV0. 3 Introduction Uganda is preparing to implement a 10-year, $800 From the perspective of the line ministries, typically million Strategic Plan (2012-2021) to reform and education and labor, strategy is about sensing, develop its Business, Technical and Vocational influencing, and responding to the external environment Education and Training (BTVET) sector. This report for WfD; oversight is about governing the activities of all takes advantage of a new World Bank diagnostic tool to stakeholders with a direct interest in WfD activities; and establish a baseline for launching the proposed BTVET delivery is about managing the activities of those strategy. Its assessment of the strategy’s underlying responsible for training provision. policy architecture will assist Uganda with monitoring implementation of the BTVET strategy and measuring These three Dimensions constitute a closed policy- progress in the context of international experience and making loop and, when taken together, allow for analysis global good practice. The findings are intended to of the functioning of a WfD system as a whole. Each contribute to on-going policy dialogue on workforce Functional Dimension is composed of Policy Goals (see development and support Uganda’s quest for faster Figure 2) spanning three broad areas: governance, economic growth and poverty reduction. finance and information. Each of the Policy Goals is in turn further defined by three tangible Policy Actions, A New Diagnostic Tool making a total of nine Policy Goals and 27 Policy Actions. The tool, known as SABER-WfD, is a product of the World Bank’s initiative on Systems Approach for Better Figure 2: Analytical Framework of SABER-WfD Education Results (SABER), which focuses on several policy domains, including workforce development (WfD). 2 SABER-WfD aims to document and assess a country’s policies and institutions in light of global good practice. It focuses on three broad Functional Dimensions of policies: (1) Strategic Framework which pertains to policies that set the direction for WfD and define its authorizing environment; (2) System Oversight which relates to the “rules of the game” (including funding regimes) that guide the functioning of the system; and (3) Service Delivery which concerns the provision of training services to equip individuals with market- and job-relevant skills (see Figure 1). Figure 1: Functional Dimensions of WfD Policies Source: Tan et al. 2011. See Annex 1 for more details. Source: Tan et al. 2011. 2 For details on SABER see http://www.worldbank.org/education/saber 4 The SABER-WfD tool uses the foregoing analytical Figure 3: Rubric for Benchmarking WfD framework to create a structured data collection instrument for gathering information on a country’s policies and institutions for WfD. For each of the 27 Emerging Established Policy Actions, the data collection instrument (DCI) poses Some instances of Systemic good a set of questions relating to the corresponding aspect of good practice practice the WfD system. Each question is answered by choosing from a list of closed options corresponding to stages of Latent Advanced development. The choice is substantiated either by documentary evidence or by information supplied and Limited Systemic good corroborated by knowledgeable and credible informants Engagement practice meeting (see Box 1). As in the other countries selected for this Source: Tan et al. 2011. global standards pilot phase, the collection of data using the SABER-WfD instrument was led by Principal Investigators (PIs) 3. the application of simple weights to aggregate the scores on the Policy Actions that relate to each Policy Box 1: A Note on Documentary Sources Goal, typically 1/3 for information relating to policy This report is based on data collected through a desk concepts and design and 2/3s to information relating to study drawing on various documents. The most policy implementation. In the interest of parsimony in important of these are the comprehensive BTVET data collection, the SABER-WfD study accepts reviews sub-sector studies commissioned by the Government and evaluations of policies and related follow up of Uganda and completed in 2010 to support the actions as evidence of implementation. Finally, to formulation of the BTVET Strategic Plan 2012-2021. obtain the scores for the three functional dimensions These detailed and comprehensive studies provide considered in the SABER-WfD framework, the scores the up-to-date information sought by the SABER- for the Policy Goals that relate to each dimension are WfD data collection instrument. In particular, the aggregated with equal weights. This algorithm yields studies offered in-depth and multidimensional composite scores on a 1-4 scale for every level of insights on: aggregation in the data; naturally, the composite scores  Uganda’s labor market; are rarely whole numbers.  Informal sector development and non-formal training; Note that in order to conform to standardized  Agribusiness development; presentation of reports under the overall SABER  BTVET policy, management and organization; initiative the dimension-level SABER-WfD categorical  BTVET delivery; and ratings shown on the cover of this report are based on  Social equity in BTVET. the corresponding composite scores which have been converted to the relevant categories. 4 In the rest of the Complete information on all sources appears in report, the composite scores are presented in the form Annexes 4 and 5. of a dial, as shown above, in order to retain the detail they reflect. Data Processing and Scoring. For each of the 27 Policy Actions, the information gathered by the PIs is scored according to standard rubrics. These rubrics correspond to four stages of maturity in policy and institutional development for WfD, as follows: (1) latent, (2) emerging, (3) established and (4) advanced. A summary description of the rubrics appears in Figure 3 while the details are explained in Annex 6. The scores on the Policy Actions form the basis for scoring the nine Policy Goals. The approach involves 4 For a given composite score, X, the conversion to the categorical 3 For Uganda, the PI was Jutta Franz, who led the BTVET sub-sector rating shown on the cover is based on the following rule: 1.00 ≤ X ≤ studies underlying the government’s BTVET Strategic Plan. 1.75 converts to “Latent”; 1.75 < X ≤ 2.50, to “Emerging;” 2.50 < X ≤ 3.25, to “Established;” and 3.25 < X ≤ 4.00, to “Advanced.” 5 Country Context Economic and social conditions in Uganda have reflected by an increase in the Gini-coefficient from improved considerably over the past two decades. 0.37 in the mid-1990s to 0.44 in 2009. The steady growth of the economy, its gradual structural shift from agriculture to industry and Demographics and Employment services, and the recent discovery of oil deposits have begun to alter the demand for skills. Equipping the Demographics. Uganda’s population is currently workforce with the skills to take advantage of the new estimated at 33.8 million. It has been growing at the opportunities is therefore a growing challenge. Below rapid rate of 3.2% a year. The population is youthful the stage is set for discussing this issue by reviewing with nearly half of all Ugandans aged 14 or younger— key aspects of the economic and social context and the a substantially higher share than in most other world institutional and financing arrangements for regions (see figure 5). Only 2.1% of Ugandans are 65 workforce development. or older. Figure 5: Share of Population Aged 0-14, 2009 Figure 4: GDP per Capita Growth (% per annum) Sub-Saharan Africa OECD Middle East & North Africa Latin America & Caribbean East Asia & Pacific Uganda Source: World Development Indicators (database) 0 20 40 Economic Trends Note: In all regional groupings (except OECD), the data refer to developing countries. Growth. In recent years, Uganda’s GDP has been Source: World Development Indicators (database). growing faster than the average rate for Sub-Saharan Africa as a whole. Despite rapid population growth, Employment. In 2008, about 83% of Ugandans were the country’s per capita GDP grew by an average of employed, a figure exceeding the Sub-Saharan Africa 5.3% a year between 2006 and 2009 (see figure 4). average by 18 percentage points. Ugandans between Uganda’s current per capita GDP—US$503 (in 2010 ages 15 and 24—some 7 million in total—are more prices)—is two times what it was two decades ago; it likely to work than their peers elsewhere in Sub- is comparable to the average for low-income countries Saharan Africa. However, in 2002 an estimated 60% and about 40% of the Sub-Saharan African average. of the working population was self-employed. Self- employment is high across all education levels (see Poverty. Uganda has already achieved the Millennium table 1). Development Goal of halving its 1990 poverty rate by 2015. The share of Ugandans living in poverty (i.e., living on no more than $2 a day) fell to 21% by 2009, down from about 49% in the early 1990s. Still poverty remains an issue, with about 8.3% of the population living in extreme poverty (i.e., less than $1.25 a day). There is also evidence of rising inequality, as is 6 mining, engineering, oil and gas, and environmental Table 1: Prevalence of Self-Employment in technologies. According to the World Bank’s 2006 Uganda, 2002 Enterprise Survey, some 10% of manufacturing firms Years of Percentage Self-Employed in considered skilled labor a major constraint to business Education the Working Population success and labor productivity remains low. The No education 57.6 introduction of the East African common market will 1-8 years 61.8 further increase competition for Ugandan firms. 9-12 years 59.9 13+ years 30.8 Impact of Oil Sector. By 2016 Uganda’s new and rapidly developing oil sector is expected to reach full- Overall 59.5 Source: Montenegro and Hirn 2009. scale production. The sector is projected to add 20,000 new jobs, and increase the demand for various specialized technical and engineering skills. Increased In 2009-10 agriculture employed 65% of the Ugandan government investment made possible by oil-related workforce, down from 70% in 2005-06. Moreover, revenues is expected to intensify the demand for about a quarter of Ugandans depend on secondary skilled labor. income generating activities for their livelihoods. These patterns suggest that the more dynamic sectors Supply of Skills of the economy are not yet generating sufficient jobs to significantly alter Uganda’s overall employment Education. Uganda faces key educational challenges structure. that hamper skills development. Many students leave school at an early stage. In 2008 69% of Ugandans left Demand for Skills the education system having completed 7 or fewer years of formal schooling. Enrollment in secondary Sector Growth. The agricultural sector’s share of GDP school suffers and is below the average for Sub- has decreased significantly, while the industrial and Saharan Africa. With regard to learning outcomes, service sectors (most importantly construction, Uganda’s scores of 482 for math and 479 for reading manufacturing, hotels and tourism) have grown in on the 2007 Southern and Eastern Africa Consortium importance (see figure 6). Exports are still dominated for Monitoring Education Quality (SACMEQ III) exams by primary commodities; however the range of export is below the corresponding averages 511 and 514, products is diversifying. In 2007, already 70% of the respectively, for the 14 other participating countries total export volume comprised of non-traditional (see Figure 7). exports (i.e. other than coffee, cotton, tea and tobacco). Figure 7: Reading and Math Achievement for Grade Figure 6: Sector Shares of GDP (%) 6 Students (2000 and 2007) 60 40 20 0 1990 1995 2000 2005 2010 Agriculture Industry Services Source: World Development Indicators (database). Note: *Average for 14 other participating countries excluding Uganda: Botswana, Kenya, Lesotho, Malawi, Mauritius, Mozambique, Namibia, Seychelles, South Africa, Swaziland, Tanzania, Zambia, Skills Imbalances. Ad hoc studies conducted in recent Zanzibar, Zimbabwe years, such as Walter (2007), point to a considerable Source: World Development Indicators (database). undersupply of appropriately skilled labor in key sectors targeted for growth such as hospitality, Current Skills Profile. In order to take advantage of information and communication technology, business Uganda’s youth dividend, substantial effort is needed management, financial services, manufacturing, to develop the skills of its workforce. Currently, only 7 6% of the population is estimated to have received TVET. The scope of their activity, however, is difficult formal BTVET training. Furthermore, the training to determine with precision. covers only a narrow range of occupations, and does not adequately address skills needs in emerging Table 3: Enrollment in Formal BTVET, 2009 economic sectors. Feedback from employers indicates that current training programs are failing to equip Total Type % Female trainees with practical skills and job-relevant Enrollment competencies. The development of soft skills (e.g., Total 34,434 25% communication, customer care, problem solving, work Lower level- total 10,825 21% attitudes and the ethics) may also warrant attention to Technical/Farm Schools 7,470 22% enable future workers to perform productively in modern work environments. Comm. Polytechnics 3,355 20% Middle level- total 10,777 14% Technical Institutes 8,863 15% Training Provision Voc. Training Institutes 1,914 9% Institutional Structure. The formal education system in Tertiary level- total 12,832 38% Uganda comprises of seven years of primary schooling, followed by entrance into either the general Technical Colleges 1,960 6% or Business, Technical and Vocational Education and Colleges of Commerce 3,799 46% Training (BTVET) tracks. Technical schools, farm Health Institutions 2,670 31% schools and community polytechnics provide pre- Agriculture & Related 1,662 24% employment training and technical education at the post-primary level. Technical and vocational training Cooperative Colleges 1,395 52% institutes and colleges offer more advanced training at Management Institutes 1,346 46% the senior secondary and tertiary levels respectively. Source: Johanson and Okema 2011. As in most countries, workforce development in Uganda covers both pre-employment and on-the-job Female participation in the formal BTVET system has training provided by formal and non-formal programs. increased in recent years, reflecting the success of The formal BTVET system consists of some 125 public public awareness campaigns. However, girls’ share of training institutions and registered private formal BTVET enrollments is still only a quarter of the institutions. These institutions enrolled some 35,000 total. (see table 3). One reason is that the courses students in 2009 (see figure 8). Other private focus on occupations traditionally dominated by men institutions may also provide formal pre-employment At the tertiary level, the female share in enrollments is Figure 8: Training Provision in Uganda, 2009 Source: Adapted from Franz and Twebaze 2011. 8 higher (38%) as the training options are available in Qualifications Framework (UVQF), creates the fields more popular among women (e.g. commerce, legal basis for establishing a training levy and management and health occupations). fund, and defines the mandate of the DIT. While formal BTVET is a critical component of Governance. The Ministry of Education and Sports Uganda’s workforce development system, it is dwarfed (MoES) oversees the formal BTVET system. Under its by the non-formal component of the system. Precise supervision, the National Curriculum Development information about the size of the non-formal system is Centre (NCDC) develops curricula for formal BTVET scarce. Estimates suggest that some 1,000 private programs. The Uganda National Examinations Board institutions, including non-governmental (UNEB) administers examinations and certification for organizations, faith-based providers and commercial approved curricula. The MoES has recently created the training institutions, currently offer a variety of Uganda Business and Technical Education Board training programs. Corporate in-house training (UBTEB) to take charge of formal BTVET examinations programs are limited to the larger companies. and certification. Traditional apprenticeships in the informal economy also contribute to workforce development in Uganda, As part of a larger sub-sector reform, the qualification particularly among youth with little education. systems for WfD are currently in transition. The BTVET Act of 2008 lays the foundation for replacing In Uganda, the Directorate of Industrial Training (DIT), the current UNEB and trade testing systems with the under the Ministry of Education and Sports, oversees a new competency-based UVQF. Responsibility for three-level trade testing system that certifies technical implementing the UVQF rests with the DIT, under the competencies acquired through non-formal training. supervision and oversight of the Industrial Training Council (ITC). Legal Framework. Three principal acts define the legal framework for workforce development in Uganda: Financing Skills Development • Education Act of 2008 establishes procedures for Workforce development in Uganda is financed through the registration and licensing of teachers, the a variety of sources (see Figure 9), the main ones control and management of public and private being the government and private households. The schools, and the establishment of private government supports the formal BTVET sector institutions; through two main types of recurrent funding: (1) staff • Universities and Other Tertiary Institutions Act of salaries channeled through the Ministry of Public 2001 governs the provision of tertiary-level Service (2) grants (capitation and other subventions) BTVET programs; to BTVET institutions for government-sponsored • BTVET Act of 2008 articulates the principles for trainees. Additionally, the government channels an integrated BTVET system, stipulates the development funds to BTVET through special projects. establishment of the Uganda Vocational Figure 9: Flow of Funds for Skills Development Ministry of Finance Planning and Economic budget Development Development/Government of Uganda support partners Ministry of Public project/program Ministry of Education and Sports Service support development capitation payroll UPPET funds grants Industry & Public BTVET Institutions Private BTVET Institutions informal sector1 Private Households fees 9 1firm-basedtraining & traditional apprenticeships Source: Adapted from Franz and Twebaze 2011. In relation to overall public spending on education, the sponsored trainees may still be required to contribute share of formal BTVET is small, rarely exceeding 4% of toward their training costs. According to MoES data the total. This level of support is relatively modest by for 2008, private households contributed 41% of the African standards: spending per student as a total revenues of public BTVET institutions. BTVET percentage of GDP per capita is 48%, compared to the institutions also engage in various income-generating African average of 175%. MoES estimates suggest that activities, although the revenues typically constitute a funding would have to increase by 2.5 to 5 times above miniscule portion of their operating budgets. current levels in order for BTVET institutions to deliver training programs to expected standards for Development partners support workforce quality and content. development in Uganda by funding programs and projects, as well as by contributing to the education Private households make substantial contributions in sector budget. The contribution of firms typically takes the form of fees paid by those without government the form of staff development and training. sponsorship. In many institutions, even government 10 Overview of Benchmarking Results The SABER Workforce Development (WfD) The BTVET Strategic Plan (2012-2021) envisions benchmarking results reveal that Uganda is on the right reforms that are broadly consistent with the need to track with its policies and institutions for WfD. narrow the gaps revealed by the SABER-WfD Nonetheless, they fall short of what might be assessment. The experiences of other countries with characterized as global good practice. The analysis successful policies and institutions provide specific reveals gaps in specific aspects of policies pertaining to insights into potential pathways for addressing these strategy, oversight and service delivery. gaps. Importantly, their progress has materialized through a process of learning by doing that is Overview of Results supported by continuous and timely feedback to guide Figure 10 shows the results for the nine Policy Goals in implementation and adjustments of policy actions. the SABER-WfD framework. 5 Simple aggregation of the Experience shows that reforming WfD systems takes scores that feed into each functional dimension point to time to achieve progress and requires leadership at all the following results: the score for Strategic Framework levels, willingness to experiment, and perseverance is at the emerging level, for System Oversight, it with the reform agenda. Furthermore, progress can be approaches the emerging level, and for Service achieved in steps, recognizing that some action among Delivery, it falls at the latent level of development. The the full menu identified by the SABER-WfD assessment findings suggest that Uganda’s policies and institutions may be prioritized depending on favorable conditions for WfD grow progressively weaker as the focus shifts and progress. from policy conceptualization to implementation. The BTVET Strategic Plan articulates specific directions Many of the gaps identified share common root causes, for policy reform. The following actions appear implying that addressing a selected gap may lead to important and could provide a starting point to progress on related fronts. strengthen current policies and institutions for WfD: Figure 10: Uganda Benchmarking Results, 2011 On Strategic Framework:  Develop an apex-level WfD body to coordinate Policy Goal strategic policies for WfD and to ensure that there is implementation follow-up for the key priorities; and 1. Direction  Give industry and other relevant stakeholders an Framework Strategic active role in planning, oversight and delivery of 2. Priorities training. 3. Coordination On System Oversight:  Strengthen private sector training delivery through appropriate incentives and the development of an 4. Pathways accreditation system; Oversight System 5. Resources  Refine, implement and evaluate the UVQF as a mechanism to improve the labor market 6. Standards responsiveness of training provision; and  Reform the system of BTVET financing in order to diversify the funding sources, and use funding 7. Content mechanisms to create incentives for performance. Delivery Service 8. Incentives On Service Delivery:  Experiment with new governance arrangements for 9. Outcomes public sector training providers to enhance autonomy as well as accountability for results; 1 2 3 4 1–Latent; 2–Emerging; 3–Established; 4-Advanced  Support training providers to meet quality standards and to deliver market relevant programs; and Implications of the Results  Take concrete steps to foster a culture of monitoring and evaluation to advance workforce development. 5 See Annex 6 for the full results. 11 Detailed Results Dimension 1 | Strategic Framework6 Policy Goal 1 Articulating a Strategic Direction for WfD Policy Goal 2 Prioritizing a Demand-led Approach Policy Goal 3 Strengthening Critical Coordination 6 The composite scores shown in the dial are the same as the categorical ratings shown on the cover of this report. They have been converted using the rules indicated in footnote 4 on page 5. The categorical ratings conform to the standard presentaion of results in the SABER intiative, while the presentation in the dials reveals more detail. 12 Dimension 1 | Strategic Framework Policy Goal 1 Articulating a Strategic Direction for WfD Results of the SABER-WfD benchmarking exercise prioritization of WfD objectives. Since a number of indicate that for Policy Goal 1 Uganda scores below an these types of studies tend to be financed by established level. This summary result reflects the development partners, in moving forward it would be scores for the three underlying Policy Actions important to coordinate such efforts to provide for highlighting the degree to which the country prioritizes routine and timely assessments. WfD, whether its priorities are based on assessments of future economic prospects, and whether existing  Develop policies to align policies take such analyses into account. skills demand and supply This action is scored at the emerging level as the  Advocate for WfD as priority development of policies to align skills demand and for economic development supply are informed only by ad hoc assessments of This Action is scored at the established level given the skills imbalances. sustained support for WfD in the country’s economic Skills imbalances identified through various surveys, development agenda. including several sector specific surveys, have The political leadership is highly committed to prompted the government to initiate reforms. Reforms enhancing the skills of the labor force. Education and include the establishment of the Uganda Vocational training were among the top themes during the 2011 Qualifications (UVQF) and new funding mechanisms, as election campaigns. The National Development Plan provided for in the BTVET Act of 2008. However, highlights the importance of WfD for achieving national implementation of the UVQF has been slow, and new development goals and includes several sections that financing mechanisms including a training levy and a stipulate reforms and increased investment for both training fund have yet to be implemented. formal and non-formal training. This sustained A broad sub-sector analytical study conducted in 2010 leadership is provided by political leaders, Government examined the labor market context, the performance of officials as well as industry and trade union the present BTVET system, and skills implications for representatives through the Industrial Training agricultural and informal sector development. Findings Council. While the Ministry of Education and the from these studies informed the design of a 10-year National Planning Authority (NPA) play key roles in BTVET Strategic Plan approved in 2011. Past efforts at policy development, their roles require greater clarity implementing reforms in the BTVET sub-sector have and coordination to reduce fragmentation and overlap been hampered by insufficient funding and the low of initiatives to improve workforce skills. priority of BTVET. It remains to be seen how effectively the government will implement reforms in this plan.  Evaluate economic prospects Rigorous and external reviews would enable a move and implications for skills towards an established system of policy development. This Action is scored at the emerging level given that efforts to introduce policies that promote a demand- Box 2: Stipulations in the BTVET Act of 2008 driven system are beginning to take shape.  Broad inclusive definition of BTVET including formal and non- formal training, qualifications from certificate- to diploma-level Formal economic assessments exist, but are only provided by public and private providers; starting to be used to inform the development of a  Separation of training delivery from quality assurance; demand driven training system. The Uganda Bureau of  Commitment to competency-based modular training; Statistics (UBOS) provides comprehensive information  Introduction of UVQF under the Directorate of Industrial on economic and labor market indicators through Training; surveys such as the Firm Demand Survey (2001), the  Articulation of BTVET with education system, recognition of the need to facilitate academic progression through technical Urban Labor Force Survey (2009), and the Employment education; and and Earnings Survey (2009). The Investment Climate  Introduction of training levy and training fund. Assessment and studies on training needs in various sectors are also used as inputs to strengthen the 13 Dimension 1 | Strategic Framework Policy Goal 2 Prioritizing a Demand-led Approach Policy Goal 2 examines the important role users of to capture changing employer demands for skills and skills play in influencing WfD outcomes. The Policy their implications for training. Actions under this Goal focus on the following: employers’ engagement at the strategic level;  Strengthen firms’ demand government incentive programs for skills upgrading; for skills to improve and efforts to address future skills challenges. Overall productivity the score for this Policy Goal is slightly above the latent level. This Action is scored at the latent level as no system of incentives and services exists to encourage firms to  Promote demand-driven develop and upgrade the skills of their employees. approach The potentially powerful incentives provided for in the This Action is scored close to the emerging level since proposed training levy in the BTVET Act of 2008 have business and industry are increasingly playing an not yet been implemented. The few programs to advisory role in establishing and implementing WfD incentivize small and micro-sized companies are ad-hoc priorities. in nature and financed mainly by development partners. The Uganda Industrial Research Institute Industry representatives in the Industrial Training provides some services to micro and small enterprises Council (ITC) have executive authority with minority in terms of technology development, training and voting power. Business representatives participate in incubation, but its outreach is limited. By establishing a the Annual Education Sector Reviews, and increasingly system of incentives, Uganda would be in a better in task forces and groups charged with designing new position to strengthen firms’ skills demands and WfD policies. Industry representatives also participated improve overall productivity. in the oversight group for the drafting of the new BTVET Strategic Plan. In certain sectors (e.g. construction industry), industry experts strongly  Address critical challenges influence training initiatives. Further development of in the future supply of skills the demand driven approach calls routine assessments This Action is scored at the emerging level given the ad hoc nature of assessments of future skills bottlenecks Box 3: Employment destination of BTVET and the limited implementation of recommendations graduates from the available assessments. National and regional, as well as sector-specific assessments are predominantly undertaken by development partners. Recommendations are often implemented with significant delay, if at all, and funding implications are not always addressed. For example, the legal framework for the establishment and operation of the UVQF has not been finalized and while funding for WfD in fiscal year 2011-2012 increased significantly, underfunding of reform programs continues to be the norm. Conducting routine and timely assessments to inform policy reforms, and promptly implementing subsequent recommendations supported by adequate funding would enable Uganda Source: Wilberforce and Mummenthey 2011, Table 49. to more effectively address critical challenges in the future supply of skills. 14 Dimension 1 | Strategic Framework Policy Goal 3 Strengthening Critical Coordination Policy Goal 3 examines the strength of critical Although there is a legal structure defining the roles coordination among key stakeholders to ensure and responsibilities of WfD stakeholders in the BTVET effective WfD. The first Policy Action associated with Act of 2008, responsibilities remain dispersed among this Goal is concerned with the quality of coordination different organizations and organizational units, both mechanisms among WfD leaders; the second, with how within and outside of the MoES which is the institution formally roles and responsibilities are defined; and the assigned with major regulatory and management third, with the existence and quality of regular responsibilities for WfD. For example, 16 different interaction among stakeholders. Uganda scores at the organizational units within MoES have responsibility emerging level of development for this Policy Goal. for implementing and managing some aspect of BTVET. The division of responsibilities for management information systems, monitoring and evaluation and  Ensure coherence of key other functions tend to overlap. Establishing a unified, strategic WfD priorities overarching WfD authority, as recommended in the BTVET Strategy, would improve the currently The score for this Action approaches the established level since formal mechanisms for assuring coherence fragmented institutional structure. of priorities exist but their scope is not universal.  Facilitate communication Key leaders at the apex level are actively involved in and interaction among all strategic WfD matters through formal structures, such WfD stakeholders as the Industrial Training Council (ITC) and the Sector- wide Approach (SWAp) mechanism led by the MoES. This Action is scored at the emerging level given the The ITC involves leaders from the MoES, the most informal nature of the structures that facilitate important employers and industry associations, trade communication and interaction among key unions and key civil society organizations. Notable in stakeholders. Uganda is the apex level involvement of the Uganda Association of Private Vocational Institutions Although there are some formal mechanisms in place (UGAPRIVI). that bring WfD stakeholders together, including the ITC and the SWAp mechanisms, communication and However, the ITC is not an overall apex level body for interaction remain weak. Mandatory industry WfD since its current mandate is limited to the membership in every governing board for all training implementation of the UVQF. Similarly, although core providers, as articulated in the BTVET strategy, would strategic initiatives are coordinated by the Annual improve stakeholder representation and ensure more Education Sector Review, the role of private sector demand-oriented training. representatives is new and their engagement remains The creation of mechanisms such as the Skills informal. The establishment of a unified apex level Development Networks (SDN), which facilitate the body, as stipulated in the BTVET Strategic Plan, would emergence of skills upgrading programs for the improve coherence, coordination and efficiency for key construction and hospitality sectors are innovative strategic WfD priorities. means of facilitating interaction at the sectoral level. In moving forward it would be important to review their effectiveness and consider extending and formalizing  Institutionalize the networks when making budget decisions on sector structure of WfD roles and investment. responsibilities This Action is scored at the emerging level because roles and responsibilities of WfD stakeholders, while defined, still lack coherence. 15 Box 4: Current Coordination Structures in BTVET Political Leaders Ad-hoc Participation Coordinations Structures Formal Participation Other Stakeholders Source: compiled on the basis of information from Franz and Twebaze 2011. 16 Detailed Results Dimension 2 | System Oversight7 Policy Goal 4 Diversifying Pathways for Skills Acquisition Policy Goal 5 Ensuring Efficiency and Equity in Funding Policy Goal 6 Assuring Relevant and Reliable Standards 7 The composite scores shown in the dial are the same as the categorical ratings shown on the cover of this report. They have been converted using the rules indicated in footnote 4 on page 5. The categorical ratings conform to the standard presentaion of results in the SABER intiative, while the presentation in the dials reveals more detail. 17 Dimension 2 | System Oversight Policy Goal 4 Diversifying Pathways for Skills Acquisition Policy Goal 4 examines the diversity of programs and broaden the opportunities for individuals to acquire for ease of movement between them, whether or not the job-oriented learning. system facilitates skills upgrading by providing information on emerging trends and recognition of Uganda facilitates the recognition of prior learning prior learning, and how well the system is able to adapt through the open trade testing opportunities to changing skills demand. The score for this Policy administered by the DIT, which are planned to be Goal is close to the emerging level. continued under the UVQF. The Workers Passport, a new instrument for the recognition of low level,  Foster articulation across informally-acquired skills, is currently being levels and programs implemented. Its articulation with the UVQF needs careful attention to avoid creating a competing system This Action is scored slightly above the latent level of qualification. because, with few exceptions, articulation arrangements are absent and incentives are not in There are few resources for individual job seekers to place to foster them. identify opportunities for skills upgrading and employment. As a result, personal contacts are the There are some exceptions at higher education level. main source of information about training and job One example is the Kyambogo University which opportunities. Organized efforts to identify and place reduces tuition time for students who hold an talent focus disproportionally on executive skills. Advanced Craft Certificate. Increasing access to credit transfer schemes and providing system-wide incentives to grow such schemes, would increase the ability of  Set policies and procedures students to move across programs and levels. to renew programs  Promote life-long learning This Action scores below the emerging level since there are no standardized requirements for opening, This Action scores at the emerging level because of the adjusting or closing programs. Decisions on program government’s strong commitment to provide life-long offerings are rarely based on labor market analyses and learning; however, systematic career counseling is not consistent input from industry. in place, with activities consisting mostly of privately- financed and ad hoc effort by individual institutions. Procedures for introducing new programs are supply- driven. Although public training institutions have a A good step forward is the government’s Non-Formal right to select their own program offerings, in practice, Skills Development Program which was implemented providers’ choices are restricted to curricula already beginning in 2010. The first round of training has recognized by NCDC. As a result, the range of courses already benefited some 20,000 mostly young people. offered in public institutions tends to remain static. While the program is still ad hoc, it is the government intention to mainstream it under the BTVET Strategic Decisions for adjusting or closing programs lack Plan and make it a part of the regular system of training consistent standards and procedures. Key standards provision. Accordingly, the Plan envisions the such as industry consultations, availability of qualified allocation of significant resources to support non- staff and equipment, and labor market analyses would formal training. The government’s commitment will help to inform decision making and promote more relevant program offerings. 18 Dimension 2 | System Oversight Policy Goal 5 Ensuring Efficiency and Equity in Funding Policy Goal 5 focuses on the government’s role in Overall, public spending on BTVET remains modest, but funding WfD, ensuring efficient and effective use of the is expected to rise in the coming years. According to available funds, and in fostering partnerships that can official data, more than 40% of revenues of public multiply the resources available to encourage and training institutions are fees collected from private support investment in WfD by individuals and households. The heavy reliance on household employers. The score for this Policy Goal is below the contributions may limit disadvantaged populations emerging level of development. from accessing public training. Although providers have considerable freedom to engage in income generating  Articulate funding strategy activities, revenue generated through this mechanism remains low. The flexibility embedded in the current This Action is scored at the emerging level given the system creates an opportunity to take advantage of existence of a systematic process for developing an previously untapped sources of funding such as the annual funding plan and the ongoing efforts to evaluate training levy and a competitive training fund outlined the effectiveness of funding allocation strategies. in the BTVET Act of 2008. Although budget allocation is informed by key stakeholders, the principles and rules underpinning the  Allocate funds to achieve funding strategy are not subject to systematic efficient results evaluation. In addition, public spending in BTVET This Action is scored at slightly below the emerging remains low relative to other countries in Sub-Saharan level because although there is a formal process to Africa and training institutions are severely allocate funds, no explicit criteria are in place to review underfunded. However, the increased allocation for the effectiveness or efficiency of budget allocations. BTVET in the budget year 2011-12 is promising. Further, there are no explicit criteria to encourage Box 5: Public Recurrent Unit Expenditure for TVET performance or efficiency in spending. The current as % of GDP per capita, circa 2009 system promotes inefficiencies in allocation and inequalities among training providers. Funding principles are not tied to enrolment and outcomes such as the number of graduates, and the placement of graduates in internships and jobs.  Foster partnerships This Action is scored at the latent level due to the absence of systemic arrangements for the WfD authority to collaborate with industry and other key stakeholders. Industry experts occasionally provide technical inputs in setting standards and testing, and some companies provide industrial attachment places for students in post-secondary training programs. Company-based training takes place largely outside the realm of the mainstream BTVET system. The groundwork for Note: Regional average includes data for Niger which are not shown Note: Latest data available between 2006-2009 (Uganda from 2009) partnership has been laid and the introduction of the Source: Franz and Twebaze 2011, 28. training levy outlined in the BTVET Act of 2008 could formalize and increase employer’s contribution to skills development. 19 Dimension 2 | System Oversight Policy Goal 6 Assuring Relevant and Reliable Standards Policy Goal 6 focuses on assuring the quality of both the parallel curricula-based certification system. The recent services offered by training providers and of the skills establishment of the UBTEB, a new certification body acquired by individuals through credible procedures for this type of testing, suggests that formal training for accreditation and skills certification. The score for will remain under a new separate qualification system, this Policy Goal falls close to the latent level. without the benefit of industry influence that characterizes the UVQF (Box 6).  Specify accreditation standards  Assure credibility of accreditation and of skills This Action is scored at the latent level due to the limited coverage of the current licensing and certification registration system and the inadequate nature of the This Action is scored at the latent level because standards established. accreditation standards are not sufficiently developed, let alone enforced, and there is considerable Only private institutions that want to offer formal incoherence in the establishment of skills testing. training programs are effectively required to register, with the consequence that large segments of the Lax enforcement means that many private institutions training provision including the totality of the public bypass licensing/registration 8 even though it is a providers are not required to obtain licenses. Existing mandatory condition for operation under the Education licensing standards are based on those for the general Act. The Universal Post Primary Education and education system and not aligned with modern Training (UPPET) program, which makes accreditation principles for WfD institutions. However, licensing/registration a pre-condition for government the BTVET Strategic Plan acknowledges the importance subsidies, incentivizes providers to seek registration; of a comprehensive accreditation system that covers however, only 16 private institutions participated in both public and private training providers and that is this scheme in 2010. The licensing/registration process interlinked with a quality management system. is prohibitively costly and bureaucratic since it requires Implementation of these provisions could increase the providers to make several visits to the MoES in scope and appropriateness of the current Kampala. Successful applicants have few incentives to licensing/registration system. maintain and improve quality standards. Once granted, registration is not subject to renewal requirements;  Strengthen skills testing inspections for oversight of quality do not effectively and certification target private providers. Both the UVQF and the UNEB promulgate skills testing standards. The scope of the This Action is scored at the emerging level because UVQF is still being clarified and even though rules and competency-based testing aligned with international procedures of the external testing system appear standards has been piloted in key occupations but is transparent, they have yet to be implemented. The limited in scope and plans for scaling up the system are UNEB is supposed to transfer responsibility of formal not clear. BTVET skills certification to the UBTEB. Credibility would increase with system stability and appropriate Due to past budget constraints the UVQF has so far only mechanisms for articulation between these two been implemented on a pilot basis and in non-formal certification systems. training programs. Up to 2010, 59 occupational profiles and 35 Assessment and Training Packages (ATP) had been developed and piloted in 80 institutions. In 2010 competency based assessments were introduced on a 8 Licensing and registration are two different steps to country-wide basis for non-formal training. Testing in formalize the status of a training institution. The former formal long-term technical and vocational education, in is a temporary first step that must then be followed by particular at higher levels has remained under a registration. Both steps are formally required. 20 Box 6: Parallel systems of skills certification Other DIT UNEB/UBTEB Certifying Bodies Trade testing UVQF Adv. Diploma (phasing out) (phasing in) 2 yrs post OD Diplomas Ord. Diploma Various, UNMEB, UVQF Level 4 2 yrs post S.6 MUBS, others or Craft II UMCC UVQF Level 3 Craft II 1 yrs post Craft I Certificates UVQF Level 2 Various, e.g. UCC Craft I UMNEB, and 2 yrs post S.4 others or UJTC/CPCE UVQF Level 1 UJTC/CPCE UICC UVQF Basic 3 yrs post P.7 course Acronyms refer to the following: DIT: Directorate of Industrial Training; UVQF: Uganda Vocational Qualifications Framework; UNEB: Uganda National Examinations Board; UBTEB: Uganda Business and Technical Education Board; UMCC: Uganda Master Craft Certificate; UCC: Uganda Craft Certificate (or Uganda College of Commerce (depending on context); UICC: Uganda Intermediate Craft Certificate: UJTC: Uganda Junior Technical Certificate; CPCE: Community Polytechnic Certificate of Education; UNMEB: Uganda Nurses and Midwifes Examination Board : MUBS: Makerere University Business School: OD: ordinary diploma; S.6: “A” levels’; S.4: “O”levels; and P.7: completed primary. Source: authors’ construction. 21 Detailed Results Dimension 3 | Service Delivery9 Policy Goal 7 Fostering Relevance in Training Programs Policy Goal 8 Incentivizing Excellence in Training Provision Policy Goal 9 Enhancing Accountability for Results 9 The composite scores shown in the dial are the same as the categorical ratings shown on the cover of this report. They have been converted using the rules indicated in footnote 4 on page 5. The categorical ratings conform to the standard presentaion of results in the SABER intiative, while the presentation in the dials reveals more detail. 22 Dimension 3 | Service Delivery Policy Goal 7 Fostering Relevance in Training Programs Policy Goal 7 is concerned with the strengthening of improve when the UVQF becomes the main instrument linkages with industry and research institutions, the for engaging industry experts in the formulation of integration of industry inputs into the design of training competency standards. Currently, the UVQF pertains programs, and provision for enhancing the competence only to non-formal training. of administrators and instructors in training institutions. Uganda’s score for this policy goal is slightly above the  Improve competence of latent level of development, reflecting limited advances administrators and instructors on all three policy actions. This Action is scored at almost the emerging level  Link training, industry, and because while an explicit staff development plan exists, the lack of industry experience among administrators research institutions and instructors remains an obstacle. This Action is scored at the latent level as industry’s stake in training delivery is confined to offering A system to improve instructors’ skills and qualifications industrial attachments in some BTVET streams; and links is developing. The Draft Plan for Development of between training and research institutions are limited as Technical Teachers, Instructors, and Health Tutors well. promises to strengthen instructor skills and qualifications. Systematic capacity building programs for While industrial attachments provide contact between instructors and heads of training institutions have been training institutions and industry, the scope of launched in recent years, and competency-based cooperation between these parties is limited. Skills qualifications developed. Initiatives are still limited in Development Networks seek to strengthen collaboration scope and are fully financed by development partners. between the world of work and training institutions, but However, the new Plan draws considerable attention to the Networks are small, donor-funded projects and their the need to increase capacity for training instructors sustainability is uncertain. based on updated and relevant technical teachers and instructors’ qualifications. The BTVET Strategic Plan envisions sector-specific centers of excellence that could help strengthen linkages While instructors and headmasters in training between training providers and research institutions, institutions must meet minimum academic qualifications, thus improving the quality of training and ensuring that more can be done to increase their practical industry the content keeps pace with technological advances. experience. Mechanisms of recruitment and retention on the basis of performance are largely absent. Many  Design training with technical instructors often do not meet the specified industry inputs formal entry requirements and are thus hired on temporary contracts. This Action is scored at the latent level as industry stakeholders are usually not represented on the Box 7: Employer views on BTVET courses governing boards of public institutions, and thus exert little influence over the identification and prioritization 100% 95% of training provision at the institutional level. Percentage of employers 80% Employers have views about the content of BTVET 60% 54% courses (see Box 7) but their influence over curriculum 40% and specification of training equipment is limited. 20% Industry provides input for the development of formal 2% BTVET programs through the National Curriculum 0% Need more Need more practical Need more Development Center (NCDC), however, it is usually thoeretical content content workplace training confined to feedback after drafts have been prepared. Actual influence on training content can be expected to Source: Wilberforce and Mummenthey 2011, Table 52. 23 Dimension 3 | Service Delivery Incentivizing Excellence in Training Policy Goal 8 Provision Policy Goal 8 examines the diversity in training However, registration is not subject to renewal and provision and the incentives to encourage private there is no arrangement to ensure continued adherence providers to meet WfD standards and to motivate public to WfD standards. institutions to respond to the evolving demand for skills. The score for this Policy Goal is close to a latent level of UGAPRIVI provides effective support to private training development. providers. It offers upgrading training for technical teachers and headmasters, sensitization to the UVQF,  Promote diversity in and the distribution of ATPs to private providers. It is the principal implementing agency for development training provision partners’ programs that support private providers. As This Action is scored close to the emerging level as such, UGAPRIVI has taken over important functions to there is a substantial diversity in training provision but facilitate quality improvements in the private training not an established system of incentives for training market. provision by private providers. Expanding non-state providers’ participation in publicly The field of private providers is relatively large, sponsored training schemes would be beneficial, but comprising some 1,000 providers with enrollment Box 8: Employers’ perception of training quality exceeding 100,000. The range of courses offered is likely 50% wider than in public institutions. Due to the high presence of faith-based organizations and NGOs, the 40% private provider segment, unlike in many other 30% countries, also offers a considerable range of technical 20% occupations. Many private providers have an excellent 10% to good reputation among employers (see Box 8). 0% The large diversity of training providers stems mainly from the ease of entry into the training market rather than from an established incentive system for training Public Providers Private Providers provision (and the lack of quality assurance; see Policy Goal 6). Under current arrangements, very few non- Source: Wilberforce and Mummenthey 2010, Table 49. state providers benefit from government training grants, only a few institutions with outstanding performance and many locations such as rural and conflict-affected have been selected to participate at present. The BTVET areas are under-served. The system of incentives has Strategic Plan envisages an expanded program under not been reviewed for effectiveness. However, the which private providers would receive, on a competitive development of new incentive schemes is envisaged in basis, financial and technical support to improve the the new BTVET Strategic Plan. quality of their training services.  Incentivize private  Motivate public institutions providers to meet WfD to respond to demand for skills standards This Action is scored at the latent level in light of the This Action is scored at just above the latent level due to absence of mechanisms or processes to ensure training the inadequacy of incentives for private institutions to institutions are demand driven. There are no improve and maintain expected standards; and the performance contracts for heads of institutions and staff limited participation of private providers in publicly- and no defined output targets guide institutional sponsored training schemes. operations. Under current arrangements, providers intending to offer formal BTVET programs must formally register. 24 Dimension 3 | Service Delivery Policy Goal 9 Enhancing Accountability for Results Policy Goal 9 is concerned with systemic monitoring Education collects and publishes data of tertiary BTVET and evaluation of the demand for skills; procedures for institutions." data collection and management; and level of attention to outcomes, efficiency and innovation in service  Increase focus on delivery. The score for this Policy Goal is close to the outcomes, efficiency and latent level. innovation  Strengthen monitoring This Action is scored at just above the latent level since and evaluation there is some evidence of data collection but no system for continuous feedback to improve skills development This Action is scored at a latent level given the lack of policies and delivery. easily obtainable data relating to workforce development and the limited attention to the evaluation Occasionally, ad hoc tracer studies were conducted in of skills demand. the context of projects financed by development partners. The launch of the first ever comprehensive There are a considerable number of ad hoc studies, for national tracer study min 2011 marks the beginnings of example, a comprehensive BTVET subsector study a more systematic approach to collecting data on which was prepared as the basis of the BTVET strategic training outcomes. Under the BTVET Strategic Plan, plan. However, data are not consolidated in a single consideration is being given to major systemic reforms office or website that maintains and shares a including the introduction of performance-based comprehensive overview of available knowledge on funding, decentralization of authority to training WfD and skills demand. institutions and more assiduous implementation of the UVQF. In order to guide the implementation of these  Specify reporting reforms to achieve their expected impact, Uganda requirements by training would benefit from the establishment of systematic institutions monitoring and evaluation arrangements. Elements of these arrangements include establishing an integrated This Action is scored slightly higher than the latent system of labor market monitoring, data collection and level as data from public training institutions are usage of analysis for decision-making (see Box 9). collected; however, the data are neither comprehensive nor sufficiently consolidated in one centralized Box 9: Enhancing Accountability for Results database that is publically available and systematically used for analysis. • Analysis of existing data sources for Labor market BTVET planning purposes Management information data are collected by the information •Tracer studies Education Management Information System (EMIS) and • Skills needs assessment from the BTVET Department. EMIS data are published, but their quality and scope is deficient. For example, no data are available on enrolments by program. The BTVET • For public and private providers BTVET Department has more detailed information, but management • Data on enrollment, completion, information funding, teachers, schools, etc. the information is not consolidated, analyzed or published. Data on examination results are kept by the relevant examination offices but they are not tabulated, analyzed, or made publicly available. Non-state Quality • In public and private BTVET providers, however, are not required to report unless management insitutions they are part of the formal BTVET system. UGAPRIVI systems • In regulatory institutions maintains a database on selected management information for private providers, but submission of Source: authors’ construction. data is voluntary. The National Council for Higher 25 Annex 1 | Analytical Framework of SABER-WfD Dimension 1: Strategic Framework Aligning WfD to national goals for productivity, growth and poverty reduction Policy Goal 1: Articulating a strategic direction for WfD Policy Action 1: Advocate for WfD as a priority for economic development Policy Action 2: Evaluate economic prospects and its implications for skills Policy Action 3: Develop policies to align skills demand and supply Policy Goal 2: Prioritizing a demand-led approach to WfD Policy Action 4: Promote demand-driven approach Policy Action 5: Strengthen firms’ demand for skills to improve productivity Policy Action 6: Address critical challenges in the future supply of skills Policy Goal 3: Strengthen critical coordination Policy Action 7: Ensure coherence of key strategic WfD priorities Policy Action 8: Institutionalize WfD roles and responsibilities Policy Action 9: Facilitate interaction among all WfD stakeholders Dimension 2: System Oversight Governing the system to achieve desired goals Policy Goal 4: Diversifying pathways for skills acquisition Policy Action 10: Foster articulation across levels and programs Policy Action 11: Promote life-long learning Policy Action 12: Set policies and procedures to renew programs Policy Goal 5: Ensuring efficiency and equity in funding Policy Action 13: Articulate funding strategy Policy Action 14: Allocate funds to achieve efficient results Policy Action 15: Foster partnerships Policy Goal 6: Assuring relevant and reliable standards Policy Action 16: Specify accreditation standards Policy Action 17: Strengthen skills testing and certification Policy Action 18: Assure credibility of accreditation and of skills certification Dimension 3: Service Delivery Ensuring tangible results on the ground Policy Goal 7: Fostering relevance in training programs Policy Action 19: Link training, industry, and research institutions Policy Action 20: Design training with industry inputs Policy Action 21: Improve competence of administrators and instructors Policy Goal 8: Incentivizing excellence in training provision Policy Action 22: Promote diversity in training provision Policy Action 23: Incentivize private providers to meet WfD standards Policy Action 24: Motivate public training institutions to respond to demand for skills Policy Goal 9: Enhancing accountability for results Policy Action 25: Strengthen monitoring and evaluation Policy Action 26: Specify reporting requirements by training institution Policy Action 27: Increase focus on outcomes, efficiency and innovation 26 Annex 2 | Benchmarking Results Advocate for WfD as priority for economic development 3.0 Articulating a Strategic 2.5 Evaluate economic prospects and its implications for skills 2.2 Direction Develop policies to align skills demand and supply 2.3 Promote demand-driven approach to WfD 1.7 Prioritizing a Strategic 2.1 Demand-led 1.4 Strengthen firms' demand for skills to improve productivity 1.0 Framework Approach Address critical challenges in the future supply of skills 1.7 Ensure coherence of key strategic WfD priorities 2.7 Strengthening Critical 2.2 Institutionalize WfD roles and responsibilities 2.0 Coordination Facilitate interaction among all WfD stakeholders 2.0 Diversifying Foster articulation across levels and programs 1.3 Pathways for 1.4 Promote life-long learning 2.0 Skills Acquisition Set policies and procedures to renew programs 1.5 Ensuring Articulate funding strategy 2.2 System Efficiency and 1.6 1.6 Allocate funds to achieve efficient results 1.7 Oversight Equity in Funding Foster partnerships 1.3 Assuring Specify accreditation standards 1.0 Relevant and 1.7 Strengthen skills testing and certification 2.0 reliable Standards Assure credibility of accreditation and of skills testing 1.2 Fostering Link training providers, industry and research institutions 1.0 Relevance in 1.3 Design training with industry inputs 1.0 Training Programs Improve competence administrators and instructors 1.8 Incentivizing Promote diversity in training provision 1.7 Service Excellence in 1.3 1.3 Incentivize private providers to meet WfD standards 1.3 Delivery Training Provision Motivate public training institutions to respond to the demand for skills 1.0 Strengthen monitoring and evaluation 1.0 Enhancing Accountability 1.2 Specify reporting requirements by training institutions 1.3 for Results Increase focus on outcomes, efficiency and innovation 1.3 27 Annex 3 | Acronyms ATP Assessment and Training Packages UNEB Uganda National Examinations Board BTVET Business, Technical and Vocational Education UPPET Universal Post Primary Education and Training and Training program CPCE Community Polytechnic Certificate of Education UVQF Uganda Vocational Qualifications Framework DIT Directorate of Industrial Training WfD Workforce Development EMIS Education Management Information System GDP Gross Domestic Product ITC Industrial Training Council MoES Ministry of Education and Sports MoPS Ministry of Public Service MUBS Makerere University Business School NCDC National Curriculum Development Centre NGO Non-governmental organization NPA National Planning Authority OECD Organization for Economic Cooperation and Development SACMEQ Southern and Eastern Africa Consortium for Monitoring Education Quality SDN Skills Development Networks SWAp Sector-wide Approach mechanism TVET Technical and Vocational Education and Training UBOS Uganda Bureau of Statistics UBTEB Uganda Business and Technical Education Board UCC Uganda Craft Certificate UGAPRIVI Uganda Association of Private Vocational Institutions UICC Uganda Intermediate Craft Certificate UJTC Uganda Junior Technical Certificate UMCC Uganda Master Craft Certificate UNMEB Uganda Nurses and Midwifes Examination Board Annex 4 | Documents Adam, Susanna and David Kimoimo. 2011. BTVET Sub-sector Analysis: Technical Paper No. 2: Informal Sector, MSE Development, Non-formal training. Prepared for the Ministry of Education and Sports, Belgian Technical Cooperation/BTC and the World Bank. Aide Memoire, 16th Education and Sports Sector Review (ESSR). Theme: Towards Meeting the Challenges in Delivering of Quality Education and Sports, 15th - 17th February 2010. Alinaitwe, Henry Mwanaki; Mwakali, Jackson A.; Hansson, Bengt. 2007. Factors affecting productivity of building craftsmen - Studies in Uganda. Journal of Civil Engineering and Management, Vol. XIII, No. 3, p. 169-176. www.jcem.vgtu.lt Chin, Aster; Kide Takehiro; Mintalucci, Marie; Misty. Natasha, 2009. Assessing Vocational Training Needs in the Ugandan Oilseed Sub-Sector. Final Report. Columbia University/SNV. Education Service Commission. 2008. The Scheme of Service for Teaching Personnel in the Uganda Education Service. Education Standards Agency/Ministry of Education and Sports. Handbook for School Inspectors. Education Management Information System (EMIS). various years. Uganda Educational Statistics Abstract. Franz, Jutta and Jimmy Twebaze. 2011. BTVET Sub-sector Analysis: Technical Paper No. 4: Policy, Management and Organization. Prepared for the Ministry of Education and Sports, Belgian Technical Cooperation/BTC and the World Bank. Government of Uganda. 2008a. Business, Technical, Vocational Education and Training Act. -----. 2008b. Education Act. -----. 2008c. Universities and Tertiary Education Act. -----. 2010. National Development Plan 2010/11 - 2014/15. -----. 2010. Updated Education Sector Strategic Plan, Draft. Grand Consult Group. 2008. The Establishment and Operationalization of the Training Levy. Final Report. Submitted to the Ministry of Education and Sports, BTVET Department. ILO. 2010. Skills for Green Jobs in Uganda. Unedited Background Country Study. Countryside Innovations Network Ltd. IOM/OIM. 2009. Labor Market Analysis. Amuru, Gulu, Kitgum, Pader. Jarvis, Peter and Catherine Tindiwensi. 2011. BTVET Sub-sector Analysis: Technical Paper No. 3: Agribusiness Development. Prepared for the Ministry of Education and Sports, Belgian Technical Cooperation/BTC and the World Bank. Johanson, Richard and James Okema. 2011. BTVET Sub-sector Analysis: Technical Paper No. 5: BTVET Delivery. Prepared for the Ministry of Education and Sports, Belgian Technical Cooperation/BTC and the World Bank. Kohn, Gerhard. 2010. Report on DIT-PEVOT/GTZ Workshop on Modular Assessment, 04 - 05, 2010, Fairway Hotel/Kampala. Kohn, Gerhard, et al. 2006. Training of Instructors and Managers for BTVET. Preliminary Study to Develop a Training Concept and Strategy. Draft Report. Ministry of Education and Sports. 2003. Final Draft Policy Document on Technical and Vocational Education and Training (BTVET) in Uganda. Presented by BTVET Policy Task Force. -----. 2005. National Protocol and Roadmap (Phase I) to Establish the Uganda Vocational Qualifications Framework (UVQF). -----. 2007. Revised Education Sector Strategic Plan 2007 - 2015. -----. 2008a. Strategic Plan for Secondary Education in Uganda 2009 - 2018. 29 -----. 2008b. Strategic Plan for Universal Secondary Education in Uganda 2009 - 2018. -----. 2008c. The BTVET (Assessment and Certification) Regulations. Draft. -----. 2009. Statutory Instrument 9/2009: Uganda Business and Technical Examinations Board Regulation. -----. 2010a. Budget Framework Paper, Financial Year 2010/1011. -----. 2010b. Education Sector Budget Data (Summary), compiled by MoES Planning Department for BTVET Sub-sector Study -----. 2010c. Ministerial Policy Statement. Financial Year 2010/2011 presented to parliament for the Budget Debate by Minister of Education and Sports. -----. 2010d. Plan for Development of Technical Teachers, Instructors, and Health Tutors for the BTVET System in Uganda. Draft Training Strategy. -----. 2010e. Skills for National Development. The Education and Sports Annual Performance Report (ESAPR), covering FY 2009/10. -----. 2011. BTVET Sub-sector Analysis: Synthesis Report. Recommendations to Improve the BTVET System in Uganda. -----. 2011. Draft Business, Technical, Vocational Education and Training (BTVET) Strategic Plan 2011 - 2020. Ministry of Education and Sports/BTVET Section. 2007. Needs Assessment Draft Report for the P.7 Enrolling Institutions in Uganda. Ministry of Education and Sports/Department of Industrial Training. Skills Development Program. Guidelines for Modular Assessment of Candidates of non-formal Training Programs. Ministry of Education and Sports/Directorate of Education Standards. 2010. Basic Requirements and Minimum Standards Indicators for Education Institutions. Ministry of Education and Sports /Education Sector Development Partners. 2010. Fast Track Initiative. Appraisal Report: Updated ESSP 2010-2015. Final Draft. Ministry of Finance, Planning and Economic Development. 2009a. Employment and Job Creation in Uganda: Status and Growth Prospects. Discussion Paper No. 19. -----. 2009b. Employment and Job Creation in Uganda: Status and Growth Prospects. Discussion Paper, No. 9. Ministry of Public Service. 2007. A Restructuring Report for Ministry of Education and Sports. Draft Ministry of Tourism, Trade and Industry. 2010. National Industrial Sector Strategic Plan. 2010/11 - 2014/15. Ministry of Works and Transport. 2010. Policy for Development and Strengthening the National Construction Industry. Montenegro, Claudio,Hirn, Maximilian. 2009. “Reshaping Economic Geography: A New Disaggregated Set of Labor Market Indicators Using Standardized Household Surveys from Around the World." Background Paper for World Development Report, The World Bank. National Planning Authority. 2010a. Implementation Program for the Holistic Approach to Non-Formal TVET in Uganda. -----. 2010b. State of Employment in Uganda Public Service. National Resistance Movement (NRM). 2010. Manifesto 2011 - 2016. Nuwagaba, A. 2010. Toward Addressing Skills Development and Employment Crisis in Uganda: the Role of Public- private Partnerships. Reev Consult International. 30 Private Sector Foundation Uganda (PSFU). 2010. 17th Education and Sports Sector Review Workshop. Views of the Private Sector on Skills for National Development. Duscussion Paper by Gideon Badagawa, Executive Director PSFU. Senoga, Milly. 2011. BTVET Sub-sector Analysis: Technical Paper No. 6: Social Equity in BTVET. Prepared for the Ministry of Education and Sports, Belgian Technical Cooperation/BTC and the World Bank. The Republic of Uganda. 2011; Budget Speech Financial Year 2011/12. Theme: Promoting Economic Growth, Job Creation and Improving Service Delivery. Uganda Bureau of Statistics. 2001. Summary Report on "Firm Demand for Post-primary Graduates in Uganda", drawn from HHS 2000 and the Firm Demand Survey 2001. -----. 2006a. Uganda Household Survey 2005/2006. Report on the Labor Force Survey. -----. 2006b. Uganda Household Survey 2005/6. Report on the Socio-economic Module. -----. 2007a. Projections of Demographic Trends in Uganda, 2007-2017. Volume I. -----. 2007b. Report on the Labor Market Conditions in Uganda. -----. 2009. Employment and Earnings Survey Report. -----. 2010a. A Report of the Survey Findings of the Urban Labor Force 2009. (Draft) -----. 2010b. Statistical Abstract. Uganda National Examinations Board. 2009. Statement on Release of Uganda Junior Technical Education Certificate 2008 Examination Results, Ref CF/UNEB/57, 30 January 2009. Voogd, Jan de and Montgomery Ogwang. 2011. BTVET Sub-sector Analysis: Technical Paper No. 1: Labor Market. Compiled by Jan de Voogd and Montgomery Ogwang. Prepared for the Ministry of Education and Sports, Belgian Technical Cooperation/BTC and the World Bank. Wagner, S.S., Sara E. Farley. 2010. Science & Technology for Private Sector Development in Uganda. SRI International Technical Project Final Report (P18045), World Bank, Washington, DC. Walter, Thomas, Sarah Namulansi. 2007. Rapid Labor Market Scan. A Study on Economic and Employment Trends in Uganda. Unpublished report prepared for the Directorate of Industrial Training (DIT) under MoES. Wedig, Karin. 2009. Uganda Labor Market and HRD Study. A study of the Construction and Hotel Sectors in Central, Eastern and Northern Uganda. Prepared for the Directorate of Industrial Training/MoES and PEVOT. GTZ. -----. 2010. Linking Labor Organization and Vocational Training in Uganda: Lessons for Rural Poverty Reduction. AFD. Wiegratz, Jorgen. 2009. Uganda's Human Resource Challenge, Training, Business Culture and Economic Development. Fountain Publishers, Kampala. Wilberforce, Muhwana, Mummenthey, Claudia. 2011. Final Result Report for the Tracer Study in BTVET Sub-sector. For the Ministry of Education and Sports and Belgian Development Cooperation/BTC. Winsor Consult Limited (Charles Kaggwa), Sarah Rosalynn Nalumansi, Matthias Risler. 2011. Scoping and Analytical Study of In-company BTVET in Uganda. Final Report. For the Ministry of Education and Sports, Belgian Development Cooperation and BTC, and the World Bank. World Bank. 2006. Enterprise Surveys, Country Profile Uganda. -----. 2007. Uganda Moving Beyond Recovery, Investment & Behavior for Growth. Country Economic Memorandum. -----. 2010. Uganda. Country Assistance Strategy. -----. 2011. Making Growth Inclusive. A Diagnostic of Human Skills and Labor Mobility World Bank/IFC. 2004. Competing in the Global Economy: An Investment Climate Assessment for Uganda. World Development Indicators. World Bank, Washington, DC. http://data.worldbank.org/data-catalog/world- development-indicators. 31 Annex 5 | Informants The analysis is mainly based on the findings of the BTVET sub-sector study commissioned in 2010 by the Ministry of Education and Sports and financed by the Belgian Development Cooperation / BTC and the World Bank. During this sub-sector study, more than 300 stakeholders were interviewed. These included experts, representatives and decision-makers from the Ministry of Education and Sport and many other ministries and public organizations, the private sector including the informal sector, NGOs and civil society, headmasters and trainers in formal and non-formal, public and private BTVET institutions and development partners. These informants are all listed in the Synthesis Report of the BTVET Sub-sector Analysis titled Recommendations to Improve the BTVET System in Uganda of March 2011. 32 Annex 6 | Validation Workshop Report January 23rd – 24th, 2012, Kampala, Uganda Description Members of the SABER WfD team traveled to Kampala, Uganda to support a workshop based on the SABER Workforce Development Country Report for Uganda. The two-day workshop was held on January 23-24th and was organized under the leadership of Sukhdeep Brar, the Bank's local TTL for education. The main objectives of the workshop were twofold: i) trial the effectiveness of the SABER WfD tool in terms of the accuracy of its analysis of the Ugandan WfD context; ii) assist the Ugandan government and relevant stakeholders in identifying priority actions for reform based upon recommendations contained in the BTVET Strategic Plan. Participation In addition to HQ and local Bank representatives, the workshop was attended by Jutta Franz, the consultant responsible for data collection and drafting Country Report, and 35 select local participants that included Ugandan government officials, development partners and representatives of the Ugandan industry and private BTVET providers. Summary The methodologies employed over the course of the workshop proved generally effective. A series of presentations on the first day included an overview of the Strategic Plan for Skilling Uganda by Henry Okinyal, head of the Directorate of Industrial Training. This set a constructive tone for the workshop by highlighting how the Strategic Plan gives Uganda the unique potential to move forward and address many of the key challenges articulated by the Country Report. Subsequent presentations by Jee-Peng Tan and Jutta Franz were well received as they familiarized participants with the purpose of the SABER-WfD tool and the rationale for the assessment of Uganda’s Workforce development as captured in Country Report. The afternoon consisted of small group work sessions, where participants examined the structure and content of the data collection instrument and the findings within the Country Report. The Country Report’s findings withstood close scrutiny by workshop participants and the Report’s accuracy was affirmed by participants’ comments both during the workshop and in post- workshop evaluations. Due to time constraints, the second group work session dealing with the identification of priority reforms within the BTVET Strategic Plan was held on the second day and the format was changed to an open plenary discussion. While a smaller group setting would have lent itself better to this activity given the complexity of the Strategic Plan for Skilling Uganda and its recommended actions, the important objective of moving dialogue from considerations of WfD challenges towards the importance of prioritizing actions for reform was ultimately achieved. Subsequently, a panel of high- profile WfD stakeholders and Jee-Peng Tan explored a key issue in the prospects for WfD reform in Uganda: how best to fast-track the enhanced involvement of industry for delivery of skills. The panel discussion generated stimulating discussion, offered a series of recommendations, and according to post-workshop evaluations, the panel was one of the most informative components of the workshop. 33 To conclude the workshop, participants were asked to vote for two of seven priority actions drawn from the dialogue over the course of the workshop and the Skilling Uganda Strategy. Two clear winners emerged, which in turn can serve as the basis for focusing and advancing policy dialogue around the implementation of the Strategy in the near term. The action receiving the most votes was to proceed with plans to target a key priority sector, such as oil, for the implementation of key WfD reforms related to promoting a demand-driven system. Placing in second was the establishment of an apex WfD authority, with the mandate and capacity to coordinate the implementation of subsequent reforms. Conclusions Accuracy of Country Report: Initial and post-workshop feedback from participants evidenced that overall, the SABER-WfD Report was well received and considered a valuable tool for furthering WfD policy dialogue in the country. While there were some small discrepancies raised regarding the Report’s detailed findings, participants largely agreed that when they looked at the Report, it reflected the Ugandan reality. Aside from receiving high marks for its accuracy, the Report also earned positive feedback from participants regarding its relevance and utility within the Ugandan context. Uganda faces a series of challenges in WfD, but the Report was effective in identifying where Uganda has made progress and in turn, it helped focus on key areas where actions can be taken to build upon the progress that has been made. Identifying Priority Actions: The Ugandan government recently endorsed a comprehensive Strategic Plan for WfD reform. The Country Report provided the basis for a focused dialogue around Uganda’s pertinent WfD challenges, and the structure of the workshop presented multiple opportunities to key in on priority actions for addressing those challenges. Paramount among the series of actions that were discussed at length, was developing effective mechanisms for engaging industry in the WfD system and prioritizing a demand-driven approach. The panel discussion was effective at presenting multiple examples of how this could be approached, and the voting at the end of the workshop evidenced a consensus around the need to take action in this area. Global Utility of SABER-WfD Framework: The SABER-WfD work received positive reception for the analytical framework that is used to collect data and develop the Country Report. Participants from among international development partners indicated that the framework might be beneficial in bringing a more normative approach to how donors support WfD in partner countries. One raised the potential utility of hosting a training that centered on the SABER-WfD tool. These comments further evidence that the SABER-WfD tool can be effective at bringing a degree of coherence to the complex issues of workforce development and in-country dialogue between partners and government. Partnership with Field Office: The success of this workshop can in no small part be attributed to the efforts of Sukhdeep Brar, and her local Bank colleagues Agnes Kaye and Innocent Mulindwa, in advance and over the course of the two day event. Sukhdeep and her team were able to bring in a broad representation of engaged stakeholders. Furthermore, the relationships that Sukhdeep has worked to cultivate with local stakeholders created a positive and productive environment for presenting the SABER-WfD tool and facilitating focused dialogue around potential next steps for strengthening WfD in Uganda. 34 Annex 6 | Benchmarking Rubrics Functional Dimension 1: Strategic Framework Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Advocate for WfD  WfD is not prioritized in  Political and other leaders  Political and other key  WfD is fully integrated into as a priority for national economic recognize the leaders in industry national policies and 1. Articulating a Strategic Direction for Workforce Development economic development. importance of WfD for provide sustained strategies, reflecting a holistic development economic development; support for WfD; approach 10 to WfD; economic economic development economic development development plans formally plans have identified a few plans assess and specify assess and specify a wide WfD priorities. several WfD priorities range of WfD priorities that are that are being supported by implementation implemented. plans and budgets, these are subject to continuous evaluation and improvements. Evaluate economic  The concept of a demand-  A demand-driven WfD  A demand-driven WfD  A well-informed demand- prospects and its driven approach 11 to WfD strategy is beginning to strategy informed by driven WfD strategy with implications for has yet to emerge. take shape but policy appropriate analyses is continuous evaluation and skills reforms are often impeded accompanied by some improvements has been by various difficulties. policy reforms that have internalized as a standard been implemented. practice. Develop polices to  Policies are being  A few policies have been  A range of policies based  Policies are formulated on the align skills demand developed but are not developed on the basis of on occasional and basis of well-informed and supply based on formal occasional assessments routine assessments by analyses, including analyses of skills to address imbalances government and assessments by independent demand. between skills demand independent WfD organizations, and they are and supply; these policies stakeholders have been routinely reviewed and and interventions are implemented to address updated with inputs from subject to in-house skills imbalances; these relevant stakeholders to reviews. are subject to routine in- ensure program offerings fit house reviews and the economic climate and independent external demands for new skills. evaluations. 10 A holistic approach is one that addresses multiple dimensions of skills development, including: (a) aligning skills training to employers’ needs and national goals for productivity, growth and poverty reduction; (b) governing the system to achieved the desired national goals, and (c) ensuring tangible results on the ground. 11 In a demand-driven strategy, the demand for skills drives the supply of training services. Arrangements to achieve this relationship between skills supply and demand include: the involvement of employers in shaping training policies and provision, financing tied to employment outcomes, etc. 35 Functional Dimension 1: Strategic Framework Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Promote a  There is limited or no  Business and industry play  A demand-driven approach  A demand-driven approach demand-driven attempt to incorporate an advisory role in to WfD is in place with to WfD has been fully approach business and industry establishing and business and industry established with business inputs in establishing and implementing WfD providing inputs for setting and industry playing both implementing WfD priorities based on WfD priorities based on advisory and executive priorities. occasional studies and routine assessments roles supported by routine assessments. provided by government assessments from agencies, employers, trade government agencies, other associations and labor key WfD stakeholders and 2.Prioritizing a Demand-led Approach unions. independent organizations. Strengthen firms'  Few incentives and  Incentives and services  Incentives and services  Incentives and services demand for skills services exist to support are in place to provide enable firms to expand the enabling firms to address to improve skills development for selective support for skills sets of workers to skills constraints impeding productivity technology upgrading by technology-related skills facilitate technology their ability to upgrade firms. upgrading; incentive adaptation and adoption for technologies and programs are subject to greater productivity; these productivity are well occasional reviews but measures are supported by established; these are often without adequate routine reviews followed routinely reviewed and follow-up of by implementation of some adjusted for impact; all key recommendations. review recommendations. review recommendations are implemented. Address critical  There is limited or no  Future supply of skills is  Assessments of future skills  Future skills supply is challenges in the formal assessment of assessed on an supply are routinely routinely assessed for future supply of the future supply of skills. occasional basis; conducted for key sectors multiple industries and skills recommendations from at the regional and national sectors at the national and assessments are levels; recommendations international levels; implemented with some are implemented with little recommendations are delay, often without delay; responsibilities for implemented promptly; adequate funding and implementation of responsibilities for assignment of recommendations are made implementation are clearly responsibility for explicit but without explicit spelled out and attention is implementation. attention to monitorable given to the realization of goals. monitorable goals. 36 Functional Dimension 1: Strategic Framework Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Ensure coherence  There is no mechanism  Coherence of key strategic  Coherence of key  Formal mechanisms of key strategic in place to ensure WfD priorities at the strategic WfD priorities at overseeing coordination WfD priorities coherence of key strategic leadership level is the apex leadership level and implementation of WfD priorities among achieved through is achieved through WfD strategies are in place WfD leaders. informal processes that formal and informal and they support yield limited WfD mechanisms that yield strengthening structures of 3. Strengthening Critical Coordination outcomes. positive WfD outcomes. WfD policy development, budget allocations, and assessments of future skills demand and supply. Institutionalize the  Roles and responsibilities  Roles and responsibilities  Roles and responsibilities  Clear WfD roles and structure of WfD for WfD are not formally of WfD stakeholders are are well-defined and responsibilities have been roles and defined, leaving the WfD poorly defined, leaving supported by legislation institutionalized through responsibilities authority without a clear the WfD authority with a and resources that enable legislation and the WfD mandate. limited mandate and the WfD authority and authority has the limited resources to key stakeholders to mandate to formulate and discharge its discharge their respective request resources that are responsibilities effectively. functions effectively. needed for the relevant authorities to discharge their responsibilities in a transparent and effective manner. Facilitate  No formal process exists  Informal structures exist  Formal structures exist  Formal structures communication for engaging all that facilitate in key economic sectors fostering extensive and interaction stakeholders. communication and that support extensive interactions among WfD among all WfD interaction among key communication and stakeholders that stakeholders. interaction among the culminate in consensuses stakeholders relevant stakeholders. on WfD priorities and policies are in place in most sectors. 37 Functional Dimension 2: System Oversight Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Foster articulation  No functioning  Ad hoc articulation  Ad hoc articulation  Standardized articulation across levels and articulation arrangements exist within arrangements exist across arrangements exist across programs arrangements. secondary schools and institutions at the secondary and post- post-secondary secondary and post- secondary programs as well institutions; only ad hoc secondary levels; a as between TVET and higher incentives are in place to program of incentives is education; a system of 4. Diversifying Pathways for Skills Acquisition foster articulation across in place to foster incentives is in place to foster levels of instruction. articulation arrangements. articulation across programs and levels of education and training. Promote life-long  No arrangements or  Ad hoc private resources  School- and community-  Integrated regional or learning public resources are in and arrangements based resources and national system with one- place to support life-long support life-long learning arrangements support life- stop online resources and learning, recognition of and recognition of prior long learning and standardized arrangements prior learning, and learning; publicly-funded recognition of prior support life-long learning and disadvantaged groups. training programs exist learning; publicly-funded recognition of prior learning; with for disadvantaged training programs with publicly-funded training groups subject to some minimal restrictions are programs provide open restrictions. available for most access to all disadvantaged disadvantaged groups. groups. Set policies and  There are no set policies  Introduction, adjustment  Introduction, adjustment  Management of publicly- procedures to to manage program and closure of publicly- and closure of publicly- funded training programs are renew programs offerings; training funded programs are made funded programs are based made on the basis of providers may introduce, through ad hoc, non- on a few explicit and comprehensive and explicit adjust or close publicly- standardized processes; standardized requirements that include funded programs at will. applications for these requirements; applications labor market analyses; changes must be done can be made online and applications can be made personally and are vetted they are vetted by formal online and they are vetted by by ad hoc committees. committees with some formal committees with representation from other representation from other WfD stakeholders. WfD stakeholders and they operate with a commitment to act in a timely manner. 38 Functional Dimension 2: System Oversight Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Articulate funding  Ad hoc funding of WfD by  Systematic funding of WfD  Systematic funding of  Systematic funding of WfD is strategy multiple stakeholders; no is determined by WfD is determined by determined through consensus evaluation of funding government agencies with government agencies building among government allocation and strategy. annual budget with advice from key agencies and key stakeholders; appropriations and line- stakeholders; annual annual budget appropriations item allocations; only budget appropriations are supported by detailed occasional evaluations of are supported by detailed spending plans to foster 5. Ensuring Efficiency and Equity in Funding funding allocation and spending plans; there are improved performance; strategy. routine evaluations of routine evaluations of funding funding allocation and allocation and strategy are strategy. accompanied by appropriate reforms as needed. Allocate funds to  No formal process for  A formal process without  A formal process for  Allocation of WfD funds is based achieve efficient allocating public funds for explicit criteria is in allocating public funds on explicit criteria aligned with results WfD. place; there are no reviews based on explicit criteria WfD priorities, including of allocation criteria. exists; there are periodic efficiency in resource reviews of the criteria but utilization; there are frequent recommended changes reviews of the criteria and face relatively long recommendations are implemented lags. implemented in a timely manner. Foster  Limited or no  Limited partnership with  Extensive partnership  An institutionalized partnerships partnership between business and industry is in between WfD authority partnership network with WfD authority and place; partners have access and key stakeholders in open membership for all WfD stakeholders in business to some public resources; business and industry; stakeholders is in place; and industry; key key stakeholders partners have access to partners have access to wide stakeholders provide few, contribute a small range of some public resources; range of public resources; key if any, resources toward resources toward WfD key stakeholders stakeholders contribute an meeting WfD priorities. priorities. contribute a broad range extensive range of resources to of resources for WfD. meet WfD priorities. 39 Functional Dimension 2: System Oversight Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Specify  No accreditation  Some accreditation  An accreditation agency  An accreditation agency with accreditation standards have been standards have been has been established with standards reflecting standards established; training established; standards are standards developed jointly international best practices providers are free to offer infrequently reviewed; with relevant stakeholders; is in place; accreditation any program. accreditation applies to standards are reviewed standards are reviewed public institutions only. internally on a regular or as frequently both internally needed basis; accreditation and by independent parties; applies to public accreditation and renewal 6. Assuring Relevant and Reliable Standards institutions and non-state of accreditation is providers receiving public compulsory for all public funding; renewal applies institutions and non-state to the latter only. training providers, regardless of their sources of funding. Strengthen skills  Competency-based  Competency-based testing  A standardized  A standardized competency- testing and testing has yet to be applies to critical competency-based testing based testing system has certification introduced; testing is occupations in key system is in place and been established for most largely based on sectors; testing may focus applies to most occupations; IT-based theoretical knowledge on a mix of theory and occupations; testing may testing focuses on theory and administered by practice and is focus on a mix of theory and and practice and is training providers administered and certified practice and is administered and certified themselves. by independent third administered and certified by independent third parties. parties. by independent third parties. Assure credibility  There is limited  Accreditation standards  Accreditation standards  A license to operate is issued of accreditation attention to are established through ad established with inputs only to institutions and and of skills accreditation standards. hoc arrangements; some from WfD stakeholders providers meeting certification support is provided to apply to all institutions and accreditation standards encourage non-state providers receiving public determined by key WfD providers to seek funding; credibility of skills stakeholders; credibility of accreditation; credibility of testing is ensured through skills testing is ensured skills testing is ensured explicit standardized through standardized testing through explicit testing protocols and protocols, accreditation of standardized testing accreditation of testing testing centers and random protocols. centers. audits. 40 Functional Dimension 3: Service Delivery Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Link training  Weak or no links  Informal links exist  Formal links exist  Formal links exist industry and between training between some training between some training between most training research institutions and industry institutions and industry institutions and industry institutions and industry institutions and research institutions. and research institutions and research institutions, and research institutions, to improve training leading to significant leading to significant relevance and quality. collaboration in several collaboration in a wide 7. Fostering Relevance in Training Programs activities. range of activities such as the provision of industry internships and training, and the introduction and redesign of training programs. Design training  Industry has limited or  Industry has an advisory  Industry has both an  Industry has a with industry no role in identifying, role in identifying, advisory and a decision- widespread advisory and inputs prioritizing and designing prioritizing and designing making role in decision-making role in publicly-funded publicly-funded programs identifying, prioritizing identifying, prioritizing programs. in some training and designing publicly- and designing publicly- institutions, usually funded programs in some funded programs in most through informal contacts. training institutions. training institutions. Improve  Few or no measures are  Recruitment of  Recruitment of  Recruitment of competence of in place to enhance the administrators and administrators and administrators and WfD competence of WfD instructors is based on instructors is based on instructors occurs through administrators administrators and minimum academic minimum academic a competitive process instructors. qualification(s), with qualification(s), with based on both academic and instructors provisions for some in- provisions for in-service qualification(s) and service training and training and industry experience, with performance-based performance-based a wide range of in-service recruitment and retention recruitment and training programs and measures based on retention measures that performance-based occasional evaluations. are based on routine recruitment and retention evaluations. measures based on routine evaluations. 41 Functional Dimension 3: Service Delivery Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Promote diversity  Training occurs through  Training policies allow  Training policies facilitate  A highly-diverse mix of non in training state provision only, some private providers to participation of non-state non-state training providers provision with no incentives to operate; training is training providers; offer training within a promote non-state provided mainly by non- training is offered mainly comprehensive system with a provision of training. profit providers with few by NGOs, with a system wide range of incentives is in incentives in place to of incentives that are place to foster non-state foster non-state provision evaluated routinely are in provision; incentives are subject 8. Incentivizing Excellence in Training Provision of training. place to foster non-state to evaluations and the provision. recommendations are implemented. Incentivize private  No incentives are in  At least one incentive  A system of financial  A comprehensive system of providers to meet place to encourage non- that is subject to and non-financial incentives that are subject to WfD standards state providers to meet occasional evaluation is in incentives that are both occasional and routine WfD standards. place to encourage non- subject to occasional and evaluations and adjustments is state providers to meet routine evaluations is in in place to encourage non-state WfD standards, but no place to encourage non- providers to comply with WfD review system exists to state providers to meet standards; periodic audits with ensure continued WfD standards; periodic penalties for noncompliance are adherence to WfD audits are conducted to conducted and enforced to standards. ensure continued ensure continued adherence to adherence to WfD WfD standards. standards. Motivate public  No mechanism or  Training institutions are  Training institutions are  Training institutions are training process is in place to expected to meet target expected to meet a wider expected to meet a wide range institutions to ensure training repetition and graduation range of WfD outcomes; of WfD outcomes; a robust respond to institutions are demand- rates but few incentives some incentives and system of incentives and driven. are in place ensure they penalties that are subject penalties that is subject to both demand for skills are demand-driven. to both occasional and occasional and routine routine evaluations are in evaluations and adjustments is place to ensure these in place to ensure that the institutions respond to training institutions are driven the demand for skills. by employers’ demands for skills. 42 Functional Dimension 3: Service Delivery Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Strengthen WfD  Limited attention is  Occasional monitoring  Routine monitoring and  Skills demand and supply are monitoring and placed on the monitoring and evaluation of skills evaluation of skills monitored and evaluated evaluation and evaluation of skills demand and supply is in demand and supply is in through routine surveys and demand and supply; an place; an overview of WfD place; an overview of WfD specially commissioned overview of WfD data is data is available only in data is available in studies; WfD data are available through government agencies. published reports and available from a consolidated informal channels only.. websites. website. Specify reporting  No specific data  Public institutions and  Public institutions and non-  Both public institutions and 9. Enhancing Accountability for Results requirements by collection and reporting non-state training state training providers are non-state training providers training are required; training providers are required to required to collect, maintain are required to collect, institutions providers maintain their collect and maintain and submit a maintain and submit a own data bases. administrative and comprehensive list of data comprehensive list of data, graduation statistics; data through an integrated including client-feedback, to reporting is voluntary for management information the WfD authority using an non-state providers but system to the WfD integrated management they may be notified of authority; timely information system; non-compliance. submission is fostered incentives, penalties and through incentives for data quality audits are compliance and penalties performed to ensure timely for non-compliance. reporting of reliable data. Increase focus on  No system of evaluation  Occasional evaluation  Routine evaluation and  Institutionalized routine outcomes, and monitoring is in and monitoring of monitoring of several key evaluation and monitoring efficiency and place to ensure efficiency limited aspects of aspects of training of all key aspects of the innovation in delivery of training training services is in place services is in place with delivery of training services services. with results used to results used to provide with results used to provide provide feedback to the feedback to training feedback to institutions, to training institutions; institutions, to prioritize prioritize funding allocations, information on labor funding allocations, and identify good practices and market outcomes of identify good practices in options for system-level graduates is publicly service delivery; improvements; online available for some information on labor dissemination of labor market institutions only. market outcomes of outcomes of graduates is graduates is publicly available to all users. available for all institutions. 43 Authorship and Acknowledgements This report is the product of collaboration Jutta Franz (principal investigator) and staff at the World Bank comprising Sukhdeep Brar (Sub-Saharan Africa Region Human Development Department, AFTEE) as well as Jee-Peng Tan and Brent T. Parton in the Education Department of the Human Development Network. Jutta Franz collected the data using the SABER-WfD data collection instrument, prepared initial drafts of the report, and finalized the report; the Bank team scored the data, designed the template for the report and made substantive contributions to the final write up. This report has benefited from suggestions and feedback from Richard Johanson, Daniel Kim, as well as from Linda English, Rachel Sebudde, Haja Razafinjatovo and Michel Welmond, in the context of a review meeting chaired by Ahmandou Moustapha Ndiaye. The research team acknowledges the support of all who have contributed to the report and its findings, including informants, survey respondents, participants at various consultation workshops, as well as past and current members of the SABER-WfD team at the World Bank (Richard Arden, Rita Costa, Angela Demas, Ryan Flynn, Lorelei Lacdao, Kiong Hock Lee, Lan Joo, Joy Yoo-Jeung Nam, Marie Madeleine Ndaw, Sungmin Park, and John Sloan). The research team gratefully acknowledges the generous financial support of the Government of the United Kingdom through its Partnership for Education Development (PFED) with the Word Bank and of the Korean Government through the Korean Trust Fund at the World Bank. 44 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 Workforce Development 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. 45 THE WORLD BANK Government of the Republic of Korea