79933 Kingdom of Tonga SABER Country Report EARLY CHILDHOOD DEVELOPMENT 2012 Policy Goals Status 1. Establishing an Enabling Environment The Early Childhood Education (ECE) Policy Framework and draft ECE Policy show promise for a well-established early childhood system in Tonga in the future. However, without officially adopting the ECE Policy, Tonga has a relatively weak regulatory framework in place. Improved coordination is needed between the health and education sectors and state/non-state actors. Improved resource mobilization is also necessary to promote optimal child development. 2. Implementing Widely Early Childhood Development (ECD) programming exists across the health, nutrition, protection, and education sectors. The Ministry of Health provides equitable coverage of essential ECD services, including well-child visits and immunization interventions. However, the Ministry of Education and Training falls short in providing adequate access to early learning opportunities for young children. 3. Monitoring and Assuring Quality More comprehensive administrative and survey data are needed to gain a better perspective of ECD outcomes and levels of coverage. While some quality standards are outlined in the ECE Policy Framework, no quality assurance mechanisms are currently in place. Monitoring must be better coordinated between the local and national levels. THE WORLD BANK KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 This report presents an analysis of the Early Childhood system. Mechanisms must be put in place to ensure Development (ECD) programs and policies which affect adequate finance and quality assurance across the young children in the Kingdom of Tonga. This report is health and education sector in Tonga. part of a series of reports prepared by the World Bank using the SABER-ECD framework and includes analysis SABER – Early Childhood Development of early learning, health, nutrition and social and child SABER – ECD collects, analyzes and disseminates protection policies and interventions in the Kingdom of comprehensive information on ECD policies around the Tonga and regional and international comparisons. world. In each participating country, extensive multi- sectoral information is collected on ECD policies and The Kingdom of Tonga is an archipelago of 176 islands programs through a desk review of available in the South Pacific, east of Fiji and southwest of government documents, data and literature, and Samoa. After 165 years of monarchy, Tonga voted its interviews with a range of ECD stakeholders, including first democratically elected parliament in 2010. Tonga government officials, service providers, civil society, is a lower-middle-income country with a population of development partners and scholars. The SABER-ECD 104,509, of which approximately 13 percent are below framework presents a holistic and integrated the age of 5. Tonga ranks 90th in the UNDP Human assessment of how the overall policy environment in a Development Index and has GDP per capita of USD country affects young children’s development. This 4,168, with 23 percent of the population living below assessment can be used to identify how countries the National Poverty Line. address the same policy challenges related to ECD, with the ultimate goal of designing effective policies for young children and their families. In 2007, the Tongan Ministry of Education and Training (MET) published an Early Childhood Education (ECE) Box 1 presents an abbreviated list of interventions and Policy Framework to guide early childhood policy and policies that the SABER-ECD approach looks for in program development in Tonga. Endorsement of this countries when assessing the level of ECD policy framework has been an important step in advancing the development. This list is not exhaustive, but is meant to ECE system in the country, but further government provide an initial checklist for countries to consider the efforts are still necessary. An official ECE Policy is yet to key policies and interventions needed across sectors. be finalized, which will be essential to establish a regulatory framework for a well-functioning ECE Snapshot of ECD Indicators in Tonga with Regional Solomon Tonga Fiji Samoa Vanuatu Comparison Islands Infant Mortality (deaths per 1,000 live births) 13 15 17 23 12 Under-5 Mortality (deaths per 1,000 live births) 16 17 20 27 14 Maternal Mortality Ratio (deaths per 100,000 births) 140 34 29 100 150 Gross Preprimary Enrollment Rate (2010) 21% No data 38 49% 59% Birth registration 2000-2010 98% No data 48% 80% 26% Source: UNICEF Country Statistics, 2010, UNESCO Institute for Statistics, WHO, 2010 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 2 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Box 1: A checklist to consider how well ECD is promoted at the country level What should be in place at the country level to promote coordinated and integrated ECD interventions for young children and their families? Healthcare • Standard health screenings for pregnant women • Skilled attendants at delivery • Childhood immunizations • Well-child visits Nutrition • Breastfeeding promotion • Salt iodization • Iron fortification Early Learning • Parenting programs (during pregnancy, after delivery and throughout early childhood) • Childcare for working parents (of high quality) • Free preprimary school (preferably at least two years with developmentally appropriate curriculum and classrooms, and quality assurance mechanisms) Social Protection • Services for orphans and vulnerable children • Policies to protect rights of children with special needs and promote their participation and access to ECD services • Financial transfer mechanisms or income supports to reach the most vulnerable families (could include cash transfers, social welfare, etc) Child Protection • Mandated birth registration • Job protection and breastfeeding breaks for new mothers • Specific provisions in judicial system for young children • Guaranteed paid parental leave of least six months • Domestic violence laws and enforcement • Tracking of child abuse (especially for young children) • Training for law enforcement officers in regards to the particular needs of young children Three Key Policy Goals for Early Childhood to address all three goals. As described in Figure 1, for each policy goal, a series of policy levers are identified, Development through which decision-makers can strengthen ECD.1 SABER-ECD identifies three core policy goals that countries should address to ensure optimal ECD Strengthening ECD policies can be viewed as a outcomes: Establishing an Enabling Environment, continuum; as described in Table 1, countries can range Implementing Widely and Monitoring and Assuring from a latent to advanced level of development within Quality. Improving ECD requires an integrated approach the different policy levers and goals. 1 These policy goals were identified based on evidence from impact evaluations, institutional analyses and a benchmarking exercise of top-performing systems. For further information see “Investing Early: What Policies Matter� (World Bank, forthcoming). SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 3 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Figure 1: Three core ECD policy goals Table 1: ECD Policy Goals and Levels of Development Level of Development ECD Policy Goal Latent Emerging Established Advanced Minimal legal framework; EstablishingNon-existent legal some programs with Regulations in some Developed legal an Enablingframework; ad-hoc sustained financing; some sectors; functioning inter- framework; robust inter- Environment financing; low inter- inter-sectoral sectoral coordination; institutional coordination; sectoral coordination. coordination. sustained financing. sustained financing. Low coverage; pilot Coverage expanding but Universal coverage; programs in some gaps remain; programs Near-universal coverage in comprehensive strategies Implementing sectors; high inequality established in a few some sectors; established across sectors; integrated Widely in access and sectors; inequality in programs in most sectors; services for all, some outcomes. access and outcomes. low inequality in access. tailored and targeted. Information on outcomes Information on outcomes Information on outcomes at national, regional and from national to Monitoring Minimal survey data at national level; local levels; standards for individual levels; and Assuring available; limited standards for services services exist for most standards exist for all Quality standards for provision exist in some sectors; no sectors; system in place to sectors; system in place to of ECD services; no system to monitor regularly monitor regularly monitor and enforcement. compliance. compliance. enforce compliance. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 4 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Policy Goal 1: Establishing an Enabling Through national laws and regulations, the health sector provides adequate healthcare for pregnant Environment women and young children. In 1978, the GoT adopted  Policy Levers: Legal Framework the Declaration of Alma-Ata, an international document •Intersectoral Coordination • Finance that promoted the provision of Primary Health Care for all. An Enabling Environment is the foundation for the Upon adopting this declaration, the Government design and implementation of effective ECD policies 1. committed to promote universal access to healthcare. An enabling environment consists of the following: the Under the Health Services Act (1991), the MoH is existence of an adequate legal and regulatory responsible for providing maternal and child healthcare in framework to support ECD; the availability of sufficient Tonga. Young children are required to attend periodic well- fiscal resources; and, coordination within sectors and child visits. The Health Services Act does not provide explicit across institutions to ensure effective service delivery. details of provision of these services, but the health sector consistently follows procedures that are conducive to a Policy Lever 1.1: well-functioning system. In addition to healthcare for Legal Framework children, standard healthcare is provided to pregnant The legal framework comprises all of the laws and women, including antenatal care, maternal depression regulations which can affect the development of young referrals, and standard HIV and STD screenings. Healthcare children in a country. The laws and regulations which is free for pregnant women, with the exception of some lab impact ECD are diverse due to the array of sectors which work and radiology. Patients under age 12 are exempt from influence ECD and because of the different constituencies all health fees. that ECD policy can and should target, including pregnant women, young children and parents and caregivers. The health system in Tonga has a particularly strong regulatory framework for immunizations. The National National laws do not promote appropriate dietary Immunization Policy (2003) outlines performance consumption for young children and pregnant women. indicators for coverage, management, and Regulations for the iodization of salt and iron immunization safety. In accordance with the policy, the fortification of foods can promote better nutrition for MoH also has developed an immunization handbook to young children. In Tonga, there are no policies to provide guidelines for vaccination procedures, which promote salt iodization or the fortification of cereals or supports training for workers in the health sector. staples with iron. The National Food Control Authority has drafted new legislation that would promote stricter Preprimary school is not compulsory in Tonga. Current standards for food safety, but this has yet to be legislation in Tonga does not mandate the provision of finalized. free preprimary education. The Tonga Education Act (1988) requires that children 6-13 years old complete In addition to regulations intended to reduce nutrient basic education. This established age range implies that deficiencies, implementation of regulatory frameworks the GoT has no legal responsibility for providing to encourage breastfeeding can be an effective strategy education for children below 6 years old. Thus, the to reduce infant mortality rates and promote healthy provision of preprimary education currently rests development. The Government of Tonga (GoT) entirely within the private sector. The legal age range of promotes breastfeeding and has established voluntary compulsory education has been a recent topic in agreements to promote the evidence-based use of political discourse in Tonga. According to a substitutes. The Ministry of Health (MoH) promotes representative of the Ministry of Education and Training exclusive and complementary breastfeeding through (MET) (formerly the Ministry of Education, Women’s the National Food and Nutrition Policy. This policy Affairs and Culture), plans exist to revise the Education encompasses the provisions of the International Code Act so that compulsory schooling will begin at an earlier of Marketing of Breast Milk Substitutes, a global health age in order to include ECE. An Early Childhood policy framework adopted by the WHO. However, no Education Steering Committee was recently established enforcement mechanisms which comply with the to advise on the drafting of a bill to reduce the international code are in place. compulsory age of education to 4. However, the SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 5 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 challenge for the MET lies in identifying sources of Convention, policies should be updated to apply to all funding in order to move forward with this bill. workers in the country so that non-discriminatory employment regulations also exist in the private sector. While preprimary education is not yet currently mandated, the MET has made efforts in recent years to National policies provide some protection of the rights establish a regulatory framework for ECE. In 2007, the of children, but could be strengthened. Upon ratifying MET, in consultation with local stakeholders, developed to the UN Convention on the Rights of the Child an ECE Policy Framework to provide guidelines and (UNCRC) in 1995, the GoT agreed to protect the rights strategies that cater to the holistic needs of young of all children in Tonga. The CRC states that every child children in Tonga, particularly those aged 3-5 years has the right to protection from being deprived of his or (provision of education services to children age 5-7 her identity. The Births, Deaths and Marriages years is the responsibility of the Primary School Sector). Registration Act (1988) mandates that all children be In January 2011, an Early Childhood Education Policy registered within three weeks of birth. The Act states was drafted, following guidelines established in the ECE that those who do not comply will be fined. Compared Policy Framework. However, as of 2012, this policy has to other countries, this regulatory framework in Tonga not been finalized. Finalization of this policy largely is particularly strong because birth registration is relies on whether the compulsory age of schooling in required for official procedures, including land Tonga is legally changed in the Education Act. inheritance and school enrollment. As the Government has plans to include the ECE from 4 In 2007, Tonga ratified the UN Convention on the Rights of years old into compulsory primary education, an immediate Persons with Disabilities, which guarantees equal rights for action would be to finalize the ECE Policy, costing its people living with disabilities in Tonga. However, despite implementation plan, and identify sources of funding an existing policy, limited services are currently available needed for implementation of the policy in full scale. for children with disabilities. The New Zealand Aid Programme (NZAP) estimates that the proportion of the National policies could be strengthened to better population in the Pacific with disability could be as high as protect working mothers. In recent years, progress has 26%. Without a stronger, more explicit framework in been made to ensure the employment rights of public place, young children living with disabilities may still be sector workers, who before 2010 were granted only 30 denied access to adequate services. Under Section 52 of days of maternity leave and no days of paternity leave. In the Education Act, the MET states that education is to be 2010, the Public Service Policy granted female public inclusive for all children, including those with special servants in Tonga up to three months of maternity leave. needs. Section 4.5.8 of the draft ECE Policy states that care Fathers are granted five working days for paternity leave. and education must be provided for - and inclusive of - Pay is to be provided by respective ministries. This policy children with special needs. The ECE Policy Framework only applies to government workers; the private sector outlines strategic actions for inclusive education of has policies that differ by company. According to the children with special needs, including the provision of Japan International Cooperation Agency (JICA), the developmentally appropriate learning activities. However, majority of companies in the private sector do not grant as discussed above, guaranteed protection under the maternity leave and those that do may only grant Education Act or the ECE Policy will not be legal until the approximately 10 days leave. Table 2 provides a sample MET officially adopts legislation to include ECD. of parental leave policies from countries in the Pacific. The GoT does not adequately support its working mothers, especially compared to other countries in the Pacific. In accordance with the ILO Maternity Protection Table 2: Regional Comparison of Parental Leave Policies Tonga Vanuatu Solomon Islands Fiji No parental leave guaranteed for All workers: 14 weeks at All workers: 12 weeks at All workers: 12 weeks at 17% all workers; 12 weeks at 100% minimum 66% of wage; paid by minimum 25% of wage; of wage, 547 days unpaid; wage for government workers employer (new legislation will paid by employer paid by employer only, paid by government regulate across employers) SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 6 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 The Government of Tonga does not have an explicitly Box. 2 Regulations and Frameworks Governing stated multi-sectoral ECD strategy. Children’s ECD in Tonga development cannot be adequately addressed through • Health Services Act (1991) interventions via any single sector. Inter-sectoral • ECE Policy Framework (2007) coordination is an important strategy to create an • Convention on the Rights of the Child (1995) enabling environment for an effective ECD system. Despite some effort by the health and education • National Immunization Policy (2003) sectors in recent years to provide quality ECD services, • The Births, Deaths, and Marriages Registration this work has operated in a silo. It is important that Act (1988) national ministries coordinate to endorse a multi- • Convention on the Rights of Persons with sectoral strategy. The draft ECE Policy states that the Disabilities (2007) MET will work in partnership with other stakeholders, across health and other sectors. In finalizing the ECE Policy, it is critical that the MET secures inputs and endorsement from all concerned ministries; such as While the Government has adequately enforced some MoH, Ministry of Finance and Planning, Ministry of regulations under the UNCRC, including provision of health Internal Affairs, etc. A finalized ECE Policy that is services and birth registration, there is room for endorsed by multiple sectors could support the improvement to protect all children, particularly orphans efficient delivery of integrated ECD services, including and vulnerable children and those in need of legal support education, early stimulation, health, nutrition, and or child advocacy. Limited policies or procedures are in protection, as well as reduce the duplication of efforts place to provide legal protection to children. In 2006, or exhaustion of resources across sectors. UNICEF recommended that a family court be established to protect the interests of children. Currently, there are no Currently, no central body is responsible for specific interventions within the judicial system that coordinating ECD policies and programs across Tonga. protect children. According to the GoT, a draft bill that In finalizing this cross-sector effort, ministries may would create a more specialized judicial system to better consider creating an institutional anchor that could protect the rights of children is planned to be reviewed in coordinate ECD across sectors and institutions. With the 2012 parliamentary session. The GoT is encouraged to creation of the ECE Policy Framework, the MET has implement this legislation in order to guarantee child developed a framework for ECD service provision. While advocacy and legal services for young children. Legislation the MET can serve as the line ministry to lead ECD should also explicitly support orphans and vulnerable efforts, the designation of an inter-sectoral taskforce children, who currently do not have legal protection. could facilitate coordination between the other sectors involved in ECD in Tonga. Figure 2 displays the Policy Lever 1.2: institutional arrangements of both state and non-state Intersectoral Coordination actors involved in ECD in Tonga. While an array of stakeholders are involved in aspects of ECD service Development in early childhood is a multi-dimensional delivery, currently very limited coordination occurs process2. In order to meet children’s diverse needs amongst the ministries at either the national or local during the early years, government coordination is level. The creation of an institutional anchor could be an essential, both horizontally across different sectors as effective strategy to coordinate efforts in national well as vertically from the local to national levels. In multi-sector planning, as well as facilitate integrated many countries non-state actors (either domestic or service delivery. international) participate in ECD service delivery; for this reason, mechanisms to coordinate with non-state actors are also essential. 2 Naudeau et al., 2011; UNESCO-OREALC, 2004; Neuman, 2007. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 7 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Figure 2: Institutional arrangements for ECD in Tonga Limited mechanisms are in place to promote mechanisms between the MET and the Preschool collaboration between state and non-state actors. Association, such as regular consultation meetings or Establishing an institutional anchor could also create the definition of explicit roles and responsibilities in the mechanisms for improved collaboration between state ECE Policy. and non-state stakeholders. In addition to national ministries, non-state actors play an important role in Interventions are not coordinated at the point of ECD service provision. Figure 2 displays selected non- service delivery. Inter-sectoral coordination is not only governmental stakeholders involved in ECD important at the national policy level, but it also is coordination. Non-state actors play an important role in crucial at the level of service delivery. The ECE Policy ECD service provision in Tonga. The Tonga Preschool Framework suggests that supplemental services be Association is an NGO founded in 1976 that coordinates offered through preschool programs, including child pre-schools in many of the islands of Tonga. The nutrition, child safety, physical health, family support, association provides workshops on child development parenting awareness program, and other services from and teaching skills. As of 2003, the association had 46 the traffic and fire departments. This list of services is members operating in Tonga. In addition to the an important first step in promoting integrated service preschool association, other non-state actors play an delivery. However, the GoT must ensure that this active role in the ECD system in Tonga. This includes the framework for integrated services is transferred into Tonga Institute of Education, which has an ECE teacher practice. This will entail supporting local service training program, and the Women and Children’s Crisis providers in health (Reproductive Health Nurses) and Center, which provides child protection services to education (ECE Providers) in developing a common plan women and young children in need. of action for integrated service delivery. Because ECD services in Tonga are spread between state and non-state providers across different sectors, Policy Lever 1.3: Finance the GoT must create mechanisms for state and non- state coordination. In particular, given that the Tonga While legal frameworks and intersectoral coordination Preschool Association currently has the strongest links are crucial to establishing an Enabling Environment for with ECE centers, an ECD institutional anchor should ECD, adequate financial investment is key to ensure that coordinate with the association in ECE policy resources are available to implement policies and achieve implementation. The ECE Policy Framework identifies service provision goals. Investments in ECD can yield high the Tonga Preschool Association as a valuable tool for public returns, but are often undersupplied without curriculum development as well as ECE center government support. Investments during the early years monitoring. There is a need for stronger coordinating can yield greater returns than equivalent investments SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 8 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 made later in a child’s life cycle and can lead to long- service standards provided by any service provider. lasting intergenerational benefits3. Not only do The MET is encouraged to use these criteria for investments in ECD generate high and persistent returns, future budget allocation decisions. they can also enhance the effectiveness of other social investments and help governments address multiple In the education sector, the level of finance for ECE is priorities with single investments inadequate to meet the needs of the population. Strong evidence suggests that investing early in children will bring high returns to society in the future. However, Public expenditures in ECD are not well reported or the GoT falls short in ensuring that adequate coordinated across the education and health sectors. expenditure is allocated towards ECE. In 2012, the total Budget coordination across essential sectors can recurrent education budget was TOP 28.4 million (USD promote adequate coverage and efficient spending in 16.2), none of which was allocated to ECE. The MET ECD. In Tonga, there is not a transparent budget process could consider including interventions for children for national spending on ECD services. The government below 6 years old in overall education expenditures, does not report specific public expenditures on ECD. The especially given that more than 8 percent of the Tongan health sector has a partially costed implementation plan population are aged 3 to 5 years and not ensured the for maternal, newborn and child health, but this plan was right to education under the Tonga Education Act. If not made available for the preparation of this report. ratified, the ECE Policy would mandate free half-day ECE Given that ECE spending is so low in the education sector, programs for 3-5 year old children. The framework the MET does not currently have a specific budget for recommends that parents be required to pay ECE early learning activities and preprimary school. One of providers according to their fees for children who the main recommendations in the ECE Policy Framework attend programs for more than four hours (half-day) is that the MET include ECE in the annual budget, with and children below 3 years of age. funding and an implementation plan for ECE-specific expenditures. As of 2012, this has yet to have been However, until this policy is finalized, available completed. government funding for ECE is limited. Currently, most ECE expenditures come from parents, churches, and Both the health and education sectors would benefit private organizations. A survey conducted by the MET from established coordination and allocation reported that the majority of preschools in Tonga are mechanisms for ECD budget decision-making. not adequately funded to meet children’s learning Currently, neither the MoH nor the MET use explicit needs. ECE service providers are usually volunteers and criteria for determining funding for public ECD are not guaranteed payment. Some ECE centers pay interventions. In October 2012, the Reproductive stipends to teachers, but this is not necessarily the Health Section of the MoH plans to conduct a norm. demographic health survey, which will cover pregnant women and young children. Once levels of The level of health finance for young children and coverage and need are identified from this survey, pregnant women is adequate. Under the Health the data could be used for future budget planning in Services Act (1991), the MoH is responsible for the health sector. The ECE Policy Framework providing free health services to children and pregnant recommends that key components of ECE programs women. Labor and delivery, immunizations, well-child be considered to produce acceptable expected visits, growth monitoring, and antenatal checks are free outcomes. This includes budget criteria for of charge for all Tongan citizens. For non-Tongan enrollment, effective management committees, and citizens, the MoH has designated fees and charges for center registration through MET to ensure minimum health services. As previously discussed, the national 3 immunization program in Tonga is particularly strong. The 2011-2012 Budget for GoT did include coordination of The GoT finances 90 percent of routine EPI vaccines. spending on health and education interventions for basic education (Age 6- 13); it is encouraged to include younger The Government also adequately covers healthcare in beneficiaries in future coordination across sectors. the country, spending USD289 per capita on total health SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 9 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Table 3: Regional comparison of health expenditure indicators Solomon Tonga Fiji Samoa Vanuatu Islands Out-of-pocket expenditure as percentage 68% 66% 54% 63% 57% of all private health expenditure Out of pocket expenditure as percentage 14% 20% 4% 8% 5% of total health expenditures General government expenditure on 4% 3% 8% 6% 5% health as a percentage of GDP Source: WHO Global Health Expenditure Database, 2010 expenditures. Table 3 illustrates overall public and out- between MET and all relevant sectors is critical. of-pocket health expenditures4. The level of out-of- Coordination of ECD across sectors should occur at pocket expenditures is above average for the region, both the national policy level and the point of service but is considered acceptable by international standards. delivery. At the national level, it would be beneficial to create specific coordinating mechanisms, such as the Policy Options to Strengthen the Enabling establishment of an institutional anchor and regular Environment for ECD in Tonga meetings attended by all relevant sectors. On the  Legal framework - First and foremost, finalizing an ground level, as already recommended in the ECE official ECE policy to establish a framework for an ECE Policy Framework, national ministries could coordinate system will ensure that the MET strategic actions to create a list of supplemental services offered outlined in the ECE Policy Framework are through preschool programs, including child nutrition, implemented. Additionally, updating the Tongan safety, health, and parenting awareness programs. Education Act could ensure that services provided by the MET are inclusive of children below 6 years old. If  Finance - For improved budget allocation, it would the Act is updated, the MET will be more accountable be useful for national ministries to use specific for applying the ECE policy framework into practice. criteria, including health survey data or the Creating a legal framework that is comprehensive education components already outlined in the ECE would help regulating ECD in all relevant sectors. In Policy Framework. If strategic actions outlined in the order to reduce nutrient deficiencies in pregnant ECE Policy Framework are to occur, allocation of women and young children, the GoT should consider adequate finance to ECE is a must for establishing regulations for universal salt iodization and implementation. Many countries around the world food fortification. Costing an estimated 5 cents (USD) are opting to attach preprimary schools to primary per child annually, universal salt iodization is schools as an expansion strategy. Box 2 provides an recognized as a simple and cost-effective strategy for example of a Conditional Cash Transfer program in addressing iodine deficiency. Additionally, it would be Mauritius that sheds lights on a strategy for ECD beneficial to update non-discriminatory maternity financing. The GoT does manage a school grants leave policies in accordance with the ILO Maternity program through the Tonga Education Support Protection Convention to include private sector Program (TESP) (funded by NZAID and formerly co- employers. funded by the World Bank). TESP currently focuses on improving the quality of primary and secondary  Inter-sectoral Coordination - In the process of education. The GoT could consider expanding the finalizing an official ECE Policy, the coordination school grants program to preprimary schools. 4 Out of pocket expenditure is any direct outlay by households, including gratuities and in-kind payments, to health practitioners and suppliers of pharmaceuticals, therapeutic appliances, and other goods and services whose primary intent is to contribute to the restoration or enhancement of the health status of individuals or populations groups. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Box 3: Relevant lessons from international experience in financing ECD Example from Mauritius: Conditional Cash Transfers (CCTs) to Promote ECE Enrollment Summary: The Government of Mauritius has focused policy efforts on increasing preprimary school enrollment in the last decade. In order to encourage parents to enroll their children, the Government provides all families with financial support contingent upon the child attending the final year of preprimary school (age 4 in Mauritius). The transfer amounts to USD 6 per month and has helped achieve an 85% enrollment rate in preprimary school for children age 3-5 in Mauritius. Provision is largely through non-State centers (17% of all preschools are State-managed), but the design and enforcement of quality control mechanisms has remained central to Government policy efforts. Key considerations for Tonga:  Given that preprimary school is not publically provided in Tonga, a publically-funded CCT program would channel funding to non-state centers.  It will be important to determine the appropriate funding level to maximize effectiveness of policy.  Incentivizing on-time enrollment for preprimary school (i.e. age 4-5 in Tonga) could help address the significant problem of low preprimary enrollment rates (as discussed in Section 2.1) Policy Goal 2: Implementing Widely ECD programs are established in core ECD areas of  Policy Levers: Scope of Programs focus and target all relevant beneficiary groups. •Coverage • Equity Interventions in ECD exist in the education, health, Implementing Widely refers to the scope of ECD programs nutrition, and child protection sectors in Tonga. Figure available, the extent of coverage (as a share of the eligible presents a selection of ECD sectoral and multi-sectoral population) and the degree of equity within ECD service interventions in Tonga. These programs target a range of provision. By definition, a focus on ECD involves (at a beneficiary groups. For example, in the education sector, minimum) interventions in health, nutrition, education, Kindergartens target children ages 3-5 years old, while and social and child protection, and should target childcare centers target children 6 months to 5 years old. pregnant women, young children and their parents and In the health sector, immunization services are designed caregivers. A robust ECD policy should include programs in to reach children from birth to 16 years old. all essential sectors; provide comparable coverage and equitable access across regions and socioeconomic status While Figure 4 displays some of the major ECD – especially reaching the most disadvantaged young programs in Tonga, it does not portray the scale of children and their families. programs. Table 4 shows that a range of ECD programs in Tonga are established in education, health, nutrition, and child protection. The health sector has the most Policy Lever 2.1: Scope of established scope of programs with nation-wide Programs interventions targeting all relevant age groups, including prenatal care for pregnant women, healthcare Effective ECD systems have programs established in all for children 0-83 months, as well as parenting programs essential sectors and ensure that every child and expecting integrated into well-child visits. Most programs in the mothers have guaranteed access to the essential services health sector are publicly supported and managed. A and interventions they need to live healthfully. The scope range of education programs, including community of programs assesses the extent to which ECD programs childcare centers and social protection programs, such across key sectors reach all beneficiaries. Figure 3 presents as the Mango Tree program for disabled children, are a summary of the key interventions needed to support provided by non-state actors. young children and their families via different sectors at different stages in a child’s life. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 11 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Figure 3: What do parents and children need to develop healthfully? Figure 4: Selected ECD programs in Tonga Figure 4: Selected ECD programs in Tonga SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 12 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Table 4: ECD Programs and Coverage in Tonga Scale ECD Intervention Number of Pilot Universal sub-national divisions programs coverage covered (out of 5) EDUCATION (stimulation and early learning) Publicly-provided ECCE Publicly-subsidized ECCE Privately-provided/community-based ECCE 5 No Capacity building intervention for ECCE (provided by Tonga Yes Preschool Association) HEALTH Prenatal healthcare (provided by MoH) 5 Nearly* Labor and delivery (provided by MoH) 5 Nearly Comprehensive immunizations for infants (provided by MoH) 5 Nearly Childhood wellness and growth monitoring (provided by MoH) 5 Nearly Capacity building intervention on quality of child health services 5 Nearly (provided by MoH) Maternal depression screening or services (provided by MoH) Yes NUTRITION Micronutrient support for pregnant women Food supplements for pregnant women Micronutrient support for young children Food supplements for young children Food fortification Breastfeeding promotion programs (provided by MoH) 5 No Anti-obesity programs encouraging healthy eating/exercise 5 No (provided by MoH) Feeding programs in preprimary schools PARENTING Parenting integrated into health/community programs 5 No (provided by MoH) Home visiting programs to provide parenting messages 5 No (provided by MoH) SPECIAL NEEDS Interventions for children with special needs (provided by 1 No Mango Tree) Advocacy and capacity building intervention for provision of care to children with special needs COMPREHENSIVE A comprehensive system that tracks individual children’s needs and intervenes, as necessary Source: SABER-ECD Policy Data Collection Instrument and SABER-ECD Program Data Collection Instrument *Note: Nearly universal coverage signifies coverage rates over 95 percent SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 13 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 While Tonga does have a variety of selected ECD Birth registration rates are high for young children in programs, there are still some key ECD interventions Tonga. Tonga is one of the few Pacific Island countries that are not yet operating at scale. For example, young to have nearly universal coverage of birth registration, children and mothers would benefit from publically- as displayed in Table 5. In 2004, the overall birth provided or publically-subsidized preschool programs, registration rate in Tonga was 98 percent. According to micronutrient and food supplementation, and UNICEF, one of the primary reasons for high coverage is interventions for orphans and vulnerable children that birth registration is necessary for administrative (OVCs). matters in Tonga, including land inheritance as well as school registration. In general, however, Tonga should be commended for the extent to which programs are established in most Tonga has high coverage of essential health important areas of development to target all interventions for young children and mothers. beneficiary groups. The challenge the GoT faces is in Promoting healthy development of young children strengthening its regulatory framework and identifying requires that ECD health services operate at scale. The funding mechanisms for quality implementation. In GoT is committed to a primary healthcare strategy that other words, the fact that these programs exist does ensures access to healthcare for all Tongan citizens. not necessarily reflect how well they are operating at Tonga provides one of the highest levels of access to scale, nor does it mean that these programs are being essential health services amongst Pacific Island monitored for compliance with quality standards. countries, as demonstrated in Table 6. The national These issues will be discussed in the proceeding Immunization program of the MoH has been successful sections. in achieving nearly universal coverage of immunizations. There is no administrative or survey data available (as will be discussed in Section 3.1) on Policy Lever 2.2: Coverage the level of access to antibiotics to treat pneumonia or oral rehydration and continued feeding to treat A robust ECD policy should establish programs in all diarrhea. Globally, diarrhea and pneumonia are among essential sectors, ensure high degrees of coverage and the top causes of deaths of children below 5 years of reach the entire population equitably–especially the age. These two indicators should be better monitored in most disadvantaged young children–so that every child the future to ensure that all children receive adequate and expecting mother have guaranteed access to healthcare to treat diarrheal and respiratory infections. essential ECD services. Table 5: Level of access to birth registration Solomon Tonga Fiji Samoa Vanuatu Islands Birth registration 98% No data 48% 80% 26% Source: UNICEF Country Statistics, 2010; UNICEF Situation Analysis of Women and Children, Tonga, 2006 Table 6: Level of access to essential health services for young children and pregnant women Solomon Tonga Fiji Samoa Vanuatu Islands 1-year-old children immunized against DPT 99% 99% 87% 79% 68% (corresponding vaccines: DPT3ß) Births attended by skilled attendants 98% 99% 81% 70% 74% Pregnant women receiving antenatal care (at 99% 100% 93% 74% 84% least once) Source: UNICEF Country Statistics, 2008 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 14 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Table 7: Level of access to essential nutrition interventions for young children and pregnant women Solomon Tonga Fiji Samoa Vanuatu Islands Children exclusively breastfed until 6 months of age 62% 40% 51% 74% 40% Infants with low birth weight 3% 10% 10% 13% 10% Pregnant women with anemia 34% 56% 33% 51% 57% Under-5 children with anemia 28% 39% 35% 58% 59% Source: UNICEF Country Statistics, WHO Global Database on Anemia . one-fourth of children below 5 years old are anemic in The MoH provides an adequate level of services to Tonga. Globally, iodine deficiency disorders in prevent undernourishment for infants, but could pregnant women or infants are the leading cause of improve coverage of programs to promote healthy preventable intellectual impairment and mental diets for children and mothers. Table 7 shows the level retardation. As discussed in Section 1.1, legislation of access to essential ECD nutrition interventions for should be finalized to promote fortification of cereals young children and pregnant women in Tonga and and staples with iron. other countries in the Pacific. Breast milk is considered to be the best method to ensure an infant’s intake of all The level of access to preprimary education is low in nutrients and calories for proper growth and Tonga. As will be discussed further in Section 3.1, development. Tonga follows WHO and UNICEF there is not adequate data on enrollment in ECE. In recommendations to promote continuous and exclusive 2005, the last year when official enrollment rates were breastfeeding until a child is 6 months of age. As reported to UNESCO Institute for Statistics, the gross indicated in Table 7, 62 percent of children are enrollment rate (GER), which reflects the total exclusively breastfed in Tonga, which is a higher rate enrollment as a percent of the total ECE age than other countries in the region. Additionally, only 3 population, was 20.7percent. In 2010, the MET percent of infants are underweight. reported that 1,418 children were enrolled in ECE centers. This represents an estimated GER of 25 5. In While undernourishment does not seem to be a 2011, 1,784 children were enrolled in ECE centers, problem in the country, overconsumption of foods representing an estimated GER of approximately 32%. high in fat, salt, and sugar is a persistent problem in Figure 5, which displays the available data on Tonga. The MoH has adopted a National Food and preprimary GER in the region, reveals that along with Nutrition Policy to promote healthy dietary guidelines Fiji, Tonga has consistently fallen behind neighboring and exercise. The policy includes nutritional awareness countries in the Pacific Islands in providing access to programs within primary and secondary schools. The ECE services. While official GER is not reported for MoH could consider expanding this program to ECE Tonga in 2010, the MET estimated enrollment rate of centers. In addition to improved coverage of 25 percent for Tonga still falls behind its neighboring nutritional education programs, the GoT could countries of Vanuatu, Solomon Islands, and Samoa. As improve the access to fortified foods. As indicated in demonstrated in Figure 5, there is a regional trend of Table 7, more than one-third of pregnant women and relatively flat enrollment rates over the past five years. 5 MET EMIS data reports total enrollment, but not enrollment rates out of the ECE-aged population. For this report, an estimated enrollment rate was calculated from the 2006 census data for children less than 2 years, who would be the 3- and 4-year-old population in 2010. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 15 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Figure 5: Gross enrollment rates for preprimary (age 3-5) in the Pacific Vanuatu 100 (data missing 1998-2000, 2002- 90 2005) Pre-Primary Gross Enrollment Rate 80 Solomon Islands 70 (data missing in 1998, 2004, 2005) 60 50 Samoa (data missing in 2005-2006) 40 30 20 Fiji (data missing in 2002, 2005, 10 2007, 2010) 0 Tonga 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 (data missing in 2001-2002, and after 2006) *in 2010, estimated from MoE Source: UNESCO Institute for Statistics, 2011; Tonga MoE data, not official UIS rate the population in Tonga lives within one hour of a Policy Lever 2.3: Equity health facility. One of the main health sector priorities in the GoT Strategic Development Plan Based on the robust evidence of the positive effects (2006) was ensuring service provision at rural and ECD interventions can have for children from regional health centers. disadvantaged backgrounds, every Government should pay special attention to equitable provision of Access to preprimary schools is not completely ECD services. One of the fundamental goals of any equitable for boys and girls. Error! Reference source ECD policy should be to provide equitable not found. Figure 6 illustrates preprimary enrollment opportunities to all young children and their families. for boys and girls in 2010 and 2011, as reported by the MET. In 2011, while overall enrollment increased Children in rural and urban areas have relatively for both genders, there was a greater discrepancy equitable access to ECD health and protection between boys and girls. Given that enrollment rates services. Existing data on nearly universal coverage are extremely low for the entire ECE-age population, of both birth registration (Table 5) and access to and the 2006 Census indicates that there are more primary health care (Table 6) suggest that unequal boys than girls in this population, all children of both coverage is not a major problem in Tonga. The genders should be provided better coverage of ECE limited data on levels of access to these services centers. On the island of Eua and Vava’u, more girls are not disaggregated by region, sex, are enrolled than boys. Conversely, on the smaller socioeconomic, or urban/rural location; hence it is islands of Ha’apai and Niuas, a disproportionate not possible to offer a complete perspective on number of boys enroll in ECE centers compared to inequality of access to essential ECD health girls. However, given that less than 100 children are interventions. However, UNICEF does report that 96 attending school in these islands, the GoT should percent of the rural population and 98 percent of focus on increasing coverage for all children. urban population has access to improved sanitation facility and 100 percent of both the rural and urban populations have access to drinking water. Additionally, according to the WHO, 100 percent of SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 16 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Figure 6: Number of boys and girls situation analysis of women, children and youth enrolled in ECE centers conducted by UNICEF revealed that limited 1200 opportunities and services are available for the disabled population in Tonga. To address this, the 1000 Number of Children draft ECE Policy and ECE Policy Framework explicitly 800 state that care and education must be provided for Enrolled 600 Boys children with special needs. The draft policy notes Girls that the MET and the MoH will coordinate early 400 intervention services for children with special needs. 200 In order to ensure that these children are provided adequate coverage to ECD services, the MET is 0 Year encouraged to finalize this legislation as soon as 2010 2011 possible. Figure 7: 2011 Estimated preprimary enrollment rates for 4 of 5 divisions in Tonga6 Policy Options to Implement ECD Widely 0.5 in Tonga Estimated Preprimary  Scope of Programs – A high-functioning ECD 0.4 Enrollment Rate system should include programs that target 0.3 pregnant women and young children across all 0.2 relevant sectors. The stock-taking exercise for this country report was a first step for gaining 0.1 perspective on the scope of ECD programs in 0 Tonga. The GoT could consider engaging in a Tongatapu Eua Ha'apai Vava'u mapping exercise to identify all existing ECD Division interventions in Tonga. This would serve as a Preprimary school coverage in sub-national divisions valuable tool in discovering potential gaps in in Tonga is not equitable. Tonga is divided into five service delivery as well as identifying areas for divisions, each consisting of several small islands. As cross-sector and public-private partnerships. displayed in Figure 7, there are inequitable levels of Some essential ECD interventions, such as public coverage for these subdivisions. The less populated preprimary education, micronutrient and food islands in Eua and Ongo Niua7 had higher enrollment supplementation interventions, do not yet exist in rates, which is not surprising, given there were less Tonga. Pilot programs, such as ECE provider children to be covered. capacity building, maternal depression screening, and programs for OVCs, could be expanded to If finalized, the ECE policy should guarantee access to adequately cover target beneficiaries across children with special needs, but the current level of Tonga. coverage is unknown. In accordance with the UNCRC, Tonga’s scope of programs cannot be considered Tonga recognizes that children with special needs without also examining the inter-related have equal rights to services. Currently, data are not Coverage and Equity policy levers. Strong ECD collected to reflect the level of coverage of ECE policies should assure high degrees of coverage services for children with special needs. However, a and reach the entire population equitably, 6 As previously noted, EMIS does not report enrollment rates, but especially the most disadvantaged young children rather number of students enrolled. These enrollment rates were and families. It is important to not only have a estimated from Tonga 2006 Census. This figure should only be used wide scope of programs, but have a regulatory as a rough illustration of disparities in enrollment. framework and funding mechanisms in place to 7 In 2006, there were less than 60 children under age 2, but in 2011, ensure that all children and families are covered 71 children were enrolled in ECE centers. Given the small size of by these programs. Ongo Niua, the enrollment rate could not be accurately estimated and was not included in Figure 7. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 17 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012  Coverage – Less than one-third of children in Tonga information systems can improve decision-making. In have access to preprimary school. Following through particular, data can inform policy choices regarding the with MET strategies outlined in the ECE Policy volume and allocation of public financing, staff Framework could increase coverage for preprimary recruitment and training, program quality, adherence to education. The health sector in Tonga should be standards and efforts to target children most in need. commended for providing high coverage to essential ECD health services. However, the MoH The health sector collects administrative data, but could consider expanding coverage for nutritional this system can be strengthened with more accurate education programs at a young age. Given that over collection and reporting of data on child health consumption of foods high in fat, salt, and sugar is a outcomes. The MoH monitors child health outcomes national health issue, starting healthy eating at a during periodic well-child visits. For every child in young age would be valuable to ensure healthy child Tonga, a Child Health Record is to be kept in health development. Additionally, the expansion of existing clinics. This record tracks immunizations, physical nutritional awareness programs for basic education growth, prenatal and delivery information, and to cater to preschool children could be a good medical treatment. Monthly reports conducted by strategy to target nutritional problems at an early district and village nurses are submitted to the MoH. age. The Ministry then tracks data on health coverage and quality, as well as children’s health outcomes, by  Equity – Collecting more data disaggregated by ethnicity and urban/rural location. However, this special-needs population, socioeconomic, information is restricted to internal use, and was not urban/rural, gender, mother-tongue, and sub- provided for the preparation of this report. The MoH national divisions could help the GoT fully gauge is encouraged to make data available for external use. how equitable ECD service provision is in Tonga. This will not only promote better quality assurance of Within the preprimary education, there is a need accurate reporting, but it will also facilitate to ensure more equitable access across sub- coordination of monitoring of ECD outcome indicators national divisions. Finalizing the ECE Policy will across sectors. In particular, there is a need to collect create a regulatory framework for the MET to and report disaggregated data on child health guarantee equitable access to services for all outcomes by urban/rural location, socioeconomic groups in Tonga. status, and ethnicity. A more complete monitoring and reporting system will allow both the health sector Policy Goal 3: Monitoring and Assuring and related sectors better understanding of Quality disparities in ECD outcomes.  Policy Levers: Data Availability • Quality Standards • Compliance The education sector collects minimal administrative with Standards data on ECE centers. Compared to the health sector, Monitoring and Assuring Quality refers to the existence the education sector in Tonga falls short in monitoring of information systems to monitor access to ECD ECD coverage and outcomes. Currently, the Education services and outcomes across children, standards for Management Information System (EMIS) in the MET ECD services and systems to monitor and enforce only collects data on the number of ECE centers, ECE compliance with those standards. Ensuring the quality of teachers, and children enrolled. Data are collected in ECD interventions is vital because evidence has shown collaboration with the Tonga Preschool Association. that unless programs are of high quality, the impact on However, some centers are not members of the children can be negligible, or even detrimental. association and representatives from the MET have stated that overall data collection procedures tend to Policy Lever 3.1: Data be inaccurate. As discussed in Section 2.2 and 2.3, Availability MET does not collect or report comprehensive enrollment data to reflect the proportion of the ECE Accurate, comprehensive and timely data collection can age population with access to ECE center (see promote more effective policy-making. Well-developed Footnote 4). Tracking gross enrollment rates and net SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 18 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 enrollment rates (enrollment of the official understanding access to ECD services as well as ECD age-group as a percentage of the corresponding outcome indicators in health, child protection, and population) would be a more effective strategy that education. Through collection and analysis of could monitor progress in increasing access to ECE household surveys, UNICEF has assisted more than 50 centers. Furthermore, in addition to gender and sub- countries in monitoring the situation of women and national division, EMIS should collect enrollment data children. Typically, funding for these surveys come by rural and urban location and socio-economic from a combination of national sources, UNICEF status. Additionally, collecting information on teacher Country Office budgets, and external partners. qualifications could better inform the MET on its progress in ensuring quality service provision in ECE Policy Lever 3.2: Quality centers. Standards The ECE policy framework suggests the creation of a Ensuring quality ECD service provision is essential. A data system for ECE monitoring. This system would focus on access – without a commensurate focus on entail collection of data at the local level that would ensuring quality – jeopardizes the very benefits that be submitted to the MET. If the MET moves forward policymakers hope children will gain through ECD with implementation of the policy, an ECE officer will interventions. The quality of ECD programs is directly consult with the MET Quality Assurance Department related to better cognitive and social development in to annually monitor the progress of ECE centers in the children.8 country. Once an improved monitoring system is in place, the MET could also consider tracking individual No specific learning standards are established for development outcomes. The ECE Policy Framework preprimary education. In order to encourage ECE recognizes the importance of identifying and service providers to promote developmentally monitoring children’s level of interest, abilities, appropriate learning opportunities for children, knowledge, and skills. This monitoring strategy could governments often establish clear learning standards allow ECE providers to cater to individuals’ for what children should know and be able to do. In development. However, without official enactment of Tonga, no specific standards exist. The MET has the ECE Policy, implementation of this strategy is not drafted a Tonga Curriculum Framework, which likely. describes the need to create a positive learning environment in preschools in order to create a Compared to countries where MICS data is available, foundation for physical, social, emotional, cognitive, survey data in Tonga is limited. Comprehensive cultural, and spiritual development. However, the survey data can serve as a complement to a country’s Curriculum Framework simply outlines an ideal internal administrative data monitoring. When limited system but does not provide any mechanisms to capacity or resources may prevent countries from enforce or monitor ECE curriculum. Until the MET closely monitoring ECD indicators, international develops and approves preprimary curriculum, ECE survey data can be a valuable tool to promote rational service providers are responsible for implementing and effective policy-making. In Tonga, limited current their own curriculum. In the draft ECE Policy, the MET survey data exists. UNICEF, UNESCO, and the WHO states that this curriculum should be developmentally report some data for some indicators, mostly in the appropriate and cater to learning needs of specific health sector, but these data are not up to date. age groups. Ensuring children are provided quality Additionally, as noted in Section 2.3, current survey learning opportunities in ECE centers is yet another data do not adequately differentiate access and reason for the MET to finalize the ECE policy as soon outcomes for special groups, such as mother tongue, as possible. rural/urban location, socio-economic status, or special needs. In 2002, the Tonga Preschool Association hosted a workshop with ECE teachers to develop the Tonga The UNICEF Multiple Indicator Cluster Survey (MICS) could serve as a valuable data collection tool for 8 Taylor & Bennett, 2008; Bryce et al, 2003; Naudeau et al, 2011V; Victoria et al, 2003 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 19 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Preschool Syllabus. The syllabus was designed to If officially adopted, the ECE Policy would establish serve as a guide for developing ECE programs to infrastructure and service delivery standards. promote physical, cognitive, social, emotional, and The draft ECE Policy outlines adult to child ratios for linguistic development. It identifies skills and ECE centers for a range of ECD age groups. It states developmental areas as well as subject content that for infants, the ratio should be 1:4; for two-year- appropriate for children 3-5 years old. Since 2003, olds, it should be 1:6; for three-year-olds, 1:10; and there is no available record that indicates the four- and five-year-olds, 1:15. These guidelines are utilization of this syllabus. The MET could coordinate commendable, as they cater to specific stages of with the Preschool Association to update and development and encourage smaller class sizes for implement this baseline curriculum. This collaboration younger children. The draft policy also indicates could serve as an effective strategy given that the adequate operating hours for ECE centers, Preschool Association is connected to the majority of recommending that ECE centers for children ages 3-5 ECE centers in the country. years old (half-day kindergartens) operate 12-20 hours a week. Additionally, it outlines infrastructure Without finalization of the ECE Policy, limited standards for ECE centers and suggests a procedure mechanisms exist to promote quality standards for for registering ECE centers. To be registered, ECE ECE professionals. Under the draft ECE Policy, the centers would need to be facilities that meet MET states that head teachers of ECE centers must infrastructure standards with trained teachers. have a diploma in early childhood teaching. The Despite the delineation of adequate service delivery Tonga Education Act requires that teachers hold a and infrastructure standards, unfortunately they are teaching certificate or license approved by the MET in not considered official requirements until the policy is order to teach in any school. However, until the Act is finalized by the MET. officially amended to make compulsory schooling begin at the age of 4, these requirements apply only Policy Lever 3.3: to primary and secondary education. Additionally, Compliance with clearly defining the roles of all stakeholders in ECE, Standards both from the public and private sector, could promote the necessary incentives to ensure that Establishing standards is essential to providing quality quality ECE is provided to all children in Tonga. ECD services and to promoting the healthy development of children. Once standards have been In 2007, the Tonga Institute of Education (TIOE), the established, it is critical that mechanisms are put in largest post-secondary provider in Tonga, began place to ensure compliance with standards. offering an ECE teacher training course which awards a one-year certificate in early childhood. Additionally, No mechanisms are in place to enforce service TIOE now also provides a diploma degree. The delivery and infrastructure standards. Currently, ECE University of the South Pacific Extension Center offers centers are not inspected or evaluated. The MET does distance and in-person modules in ECE that can lead not monitor whether centers meet criteria outlined in to certificates or diplomas in ECE. While these the ECE Policy Framework. ECE providers may be programs have advanced pre-service training internally evaluated by parents or management opportunities for ECE professionals, there is no public committees but there are no mechanisms for authority responsible for regulating this training. The reporting to the MET. The ECE Policy Framework MET should be encouraged to follow through with the recommends that umbrella organizations, such as the recommendations outlined in the ECE Policy Tonga Preschool Association, monitor and report ECE Framework to facilitate coordination with TIOE and provider qualifications to the ECE officer in the MET. the Ministry’s Curriculum Development Unit for The Framework also recommends that parent teacher regulated provision of both pre-service and in-service associations complete and submit regular reports on training. This could also include pre-service practicum enrollment, teachers, equipment, fundraising, PTA to allow ECE teachers to gain experience in the field. meetings, and infrastructure. As of 2012, no official SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 20 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 reporting procedures have been established for either ECE centers. As mentioned as an option for the Tonga Preschool Association or parent teacher improved equity, more data collection on coverage associations. levels would provide a better perspective on young children’s access to essential ECD services. While Compliance with quality standards is unknown in the health sector has relatively strong Tonga. Due to a lack of established monitoring and administrative data collection procedures in place, reporting procedures, the MET does not track there is a need for more survey data on essential whether ECE centers and ECE service providers services such as treatment for diarrhea and comply with quality standards outlined in the draft pneumonia. Finally, the GoT would benefit from ECE Policy. The only standard that the MET does track strong survey data from sources such as the is pupil-to-teacher ratios in ECE centers. According to UNICEF MICS survey. EMIS, the average teacher-to-pupil ratio was below Perhaps one of the reasons for a relatively weak data 1:11, which meets standards established in the draft collection system is the lack of incentive to collect ECE Policy. information. Available data and information is extremely valuable for both evidence-based policy Currently, the majority of ECE teachers are untrained decisions and allocation of funding. Given that in early childhood (occasionally they are retired neither of these components is strong in the Tongan primary school teachers) because most centers ECD system (as discussed in Section 1), quality data cannot afford to pay competitive wages for quality has not been a priority. In looking forward, if the GoT staff. A strategic action in the ECE Policy Framework is plans to strengthen funding mechanisms and make ensuring that, by the end of 2010, at least two future policy decisions based on evidence of what teachers in every ECE center have a certificate or works, there will be a need for improved data diploma in ECE. However, with no monitoring or availability. reporting mechanisms, there is no way to determine whether centers comply with this standard.  Quality Standards – The development of clear Furthermore, compliance is also unknown for early learning development standards for all ECE operating hours and facility infrastructure standards. centers is critical in the Tongan context. Without The quality of ECE services children receive in Tonga explicitly outlined learning standards, the MET has no will continue to be compromised until improved means of promoting quality learning across all ECE mechanisms to monitor and enforce compliance with centers. Before finalizing the ECE Policy, the draft standards are put in place. policy should be updated to include more specific learning standards. The new policy should also Policy Options to Monitor and Assure ECD include recommended curriculum options, or an Quality in Tonga officially endorsed ECE curriculum. As presented in  Data Availability – Strengthening the data Box 4, Tonga could draw lessons from the collection system for ECE centers would benefit neighboring island state of Vanuatu in establishing the Tongan education sector. Data reporting clear learning standards. The MET should coordinate mechanisms could be strengthened through with the Tonga Preschool Association in curriculum improved coordination between EMIS, the Tonga development. The existing preschool syllabus Preschool Association and other umbrella developed by the Tonga Preschool Association could organizations (not all preschools are affiliated with be expanded. The association could liaise between the Tonga Preschool Association). One the MET and preschools to ensure that a new straightforward step for EMIS would be the curriculum with quality standards is utilized at the reporting of net and gross enrollment rates rather local level. than simply the number of students enrolled in SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 21 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Box 4: Relevant lessons from international experience in establishing quality standards for ECD Example from Vanuatu: In 2010, the Vanuatu MoE, preschool teachers, and national preschool association developed a document outlining early learning and development standards for children aged 3-6 years. The document outlines developmental areas including cognitive, motor, social, emotional, and linguistic development. The standards serve as the foundation of the development of an early childhood curriculum in Vanuatu. Key Lessons for Tonga:  The Tongan MET can coordinate with the national preschool association in agreeing on learning standards for preschool. This strategy would allow the MET to take advantage of existing links between the association and ground-level service providers.  Establishing official learning standards would be a crucial first step towards the creation of a national preschool curriculum in Tonga. Table 8: Comparing ECD policies with outcomes in Tonga Policy Outcomes National Food and Nutrition Policy encourages Rate of exclusive breastfeeding until 6 months: breastfeeding 62% National Immunization Policy mandates a complete Children with DPT (12-23 months): course of childhood immunizations 91% Births, Deaths and Marriages Registration Act Birth registration rate: mandates birth registration 98% Preprimary education is not mandatory Gross preprimary school enrollment (3-5 years): 33%  Compliance with Standards – The ECE Policy Comparing Official Policies with Outcomes Framework describes relatively strong standards The existence of laws and policies alone do not always for ECE services. However, there is no value in guarantee a given correlation with desired ECD establishing these standards without also outcomes. In many countries, policies on paper and establishing procedures to monitor compliance. It the reality of access and service delivery on the is essential to establish mechanisms for monitoring ground are not aligned. Table 8 compares ECD policies ECE professionals, facilities, and service delivery. in Tonga with ECD outcomes. In Tonga, policies result Both the Tonga Preschool Association, an in desired outcomes when they provide mechanisms organization that has regular contact with local for specific implementation, rather than simply service providers, and local parent teacher promoting desired outcomes. For example, a associations can serve as liaisons for the MET in component of the National Immunization Policy tracking ECE center compliance. Implementation includes a staff support training program and detailed should be closely monitored to ensure that service delivery manual for vaccinations. Legislation minimum quality standards are met. Clearly does not simply promote the need for birth defining roles of all stakeholders for ECE registration, but it includes a fine for anyone who is regulation, monitoring, and implementation could not registered at birth. On the other hand, the help create an incentive and support system to National Food and Nutrition Policy and ECE Policy maintain the quality of service provision. Framework simply promote the respective desired outcomes and have no penalties for non-compliance. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 22 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Table 9 : Benchmarking Early Childhood Development Policy in Tonga ECD Policy Goal Level of Development Policy Lever Level of Development Legal Framework Establishing an Enabling Environment Inter-sectoral Coordination Finance Scope of Programs Implementing Widely Coverage Equity Data Availability Monitoring and Assuring Quality Quality Standards Compliance with Standards Latent Emerging Established Advanced Legend: Table 10: International Classification and Comparison of ECD Systems Level of Development ECD Policy Goal Policy Lever Tonga Australia Chile Sweden Turkey Vanuatu Legal Framework Establishing an Enabling Coordination Environment Finance Scope of Programs Implementing Coverage Widely Equity Data Availability Monitoring and Assuring Quality Quality Standards Compliance with Standards Latent Emerging Established Advanced Legend: Preliminary Benchmarking and International exists, but significant areas for improvement remain. Comparison of ECD in Tonga Tonga has an “Established� level of development for Table 9 presents the classification of ECD policy in the Implementing Widely policy goal, with near Tonga within each of the nine policy levers and three universal coverage for some ECD health interventions, policy goals. The SABER-ECD classification system but much room for improvement in provision of does not rank countries according to any overall access to preprimary education. Tonga is classified as scoring; rather, it is intended to share information on “Latent� for the Monitoring and Assuring Quality how different ECD systems address the same policy policy goal. Limited standards and quality assurance challenges. For the Establishing an Enabling mechanisms are in place for ECD service provision. Environment policy goals, the level of development Table 10 presents the status of ECD policy for Tonga is classified as “Emerging.� A policy development in Tonga alongside a selection of OECD framework for ECD service provision and coordination SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 23 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 countries and its neighbor, Vanuatu. Sweden is also help ensure that adequate human talent and home to one of the world’s most comprehensive and financial resources are available to meet the goals developed ECD policies and achieves a benchmarking outlined in the draft ECE Policy. Closer collaboration of “Advanced� in all nine policy levers. SABER-ECD with non-state stakeholders, such as the Tonga assessment of policies and programs in neighboring Preschool Association, could support the GoT in Pacific Island countries is currently being conducted. prioritizing policy goals. Additionally, a clear SABER-ECD classification of the ECD system of definition of roles for all stakeholders could be Vanuatu is displayed in the far left column. beneficial for more effective and efficient Additional regional comparisons of ECD policy goals implementation of the Tongan ECD strategy. and levers are forthcoming. Table 11 summarizes the key policy options Conclusion identified to inform policy dialogue to improve the The SABER-ECD initiative is designed to enable ECD provision of essential ECD services in Tonga. The policy makers and development partners identify finalization and approval of the draft ECE Policy is a opportunities for further development of effective critical step in moving forward in creating a more ECD systems. This country report presents a established ECD system in Tonga. The draft policy framework to benchmark Tonga’s ECD system; each and corresponding ECE Policy Framework provide a of the nine policy levers are examined in detail and strong regulatory framework that caters to the some policy options are identified to strengthened holistic needs of children age 3-5 years old in Tonga. ECD are offered. An officially adopted ECE policy alone will not suffice in ensuring a well-functioning system. Adequate Once the areas in need of attention are identified, finance and quality assurance mechanisms will be the GoT can begin to prioritize policy options to necessary to ensure effective implementation and promote healthy development for all young children accurate monitoring of ECD interventions. It is in Tonga. In moving forward, the GoT will have critical that all relevant sectors mobilize their critical decisions to make to address the needs resources to ensure young children in Tonga receive identified in this report. It will be important to adequate coverage in multiple domains. Within each ensure that the definition of short-term policy Policy Goal, opportunities exist to strengthen ECD options align with those in the long-term. A multi- policy and service delivery to ensure that all young sectoral costed implementation plan will be essential children have a strong start in life and are afforded for identifying and prioritizing actionable steps for the opportunity to reach their full potential. the GoT and other stakeholders. A costed plan will SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 24 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 Table 11: Summary of policy options to improve ECD in Tonga Policy Dimension Policy Options and Recommendations • Finalize the ECE Policy to create a regulatory framework for the ECE system, at both the national and service-delivery level • Consider changing the official age range for compulsory education to reach younger population • Establish non-discriminatory maternity-leave policies for all employers (both public and private), in accordance with ILO Maternity Protection Convention Establishing an • Develop regulations for universal salt iodization and food fortification Enabling • Create stronger mechanisms for coordination between the Tonga Preschool Association and Environment other umbrella agencies for preprimary provision (churches, community organizations) • Create institutional anchor to coordinate ECD across ministries, state and non-state stakeholders • Support local service providers in developing a plan for integrated service delivery • Include ECE in MET budget, with funding for costed implementation plan • Perform comprehensive stock-taking of ECD programming in country to identify service delivery gaps and find opportunities for cross-sector collaboration Implementing • Improve access to preprimary education by changing legal age of compulsory education and Widely identifying source of funding for improved access • Expand healthy eating programs to preprimary schools • Ensure equitable service provision of ECE centers exists across sub-national divisions • Improve data collection for ECE centers with better coordination of Tonga Preschool Association and other umbrella organizations • Collect disaggregated data on access to ECD health and education services for different Monitoring and socioeconomic levels, urban/rural location, gender, and special-needs groups Assuring Quality • Clearly define the roles of public and private sector stakeholders in ECE to ensure that quality ECE is provided to all children in Tonga • Develop clear learning standards for ECE service provision • Establish strong mechanisms to monitor whether ECE centers comply with quality standards SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 25 KINGDOM OF TONGA ǀ EARLY CHILDHOOD DEVELOPMENT SABER COUNTRY REPORT |2012 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 Early Childhood 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. THE WORLD BANK SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 26