PAKISTAN

ED/EPS/2006/RP/12e
September 2006
Decentralization of Education
in Pakistan
Country Report at the UNESCO Seminar on

EFA Implementation: Teacher and
Resource Management in the Context of Decentralization
Administrative Staff College of India, Hyderabad, India,

6-8 January 2005
In this series:
Country Reports:
Egypt
Indonesia
Mozambique
Nigeria
Pakistan
Thematic Reports:
SIASAT
Education policies and strategies
UNESCO Seminar
on
EFA Implementation: Teacher and
Resource Management in the Context of
Decentralization
Administrative Staff College of India

Hyderabad, India
6-8 January 2005
Organizer: UNESCO
This series carries in extenso the national report of the country representatives
presented at the UNESCO Seminar on Implementing Education for All:
Teacher and Resource Management in the Context of Decentralization, held
in Hyderabad (India) from 6 to 8 January 2005. Organized by UNESCO, with
assistance from the Administrative Staff College of India, Hyderabad, and the
National Institute for Educational Planning and Administration, New Delhi,
the seminar was attended by over fifty participants, including two national
representatives from each of the E-9 countries (Bangladesh, Brazil, China,
Egypt, India, Indonesia, Mexico, Nigeria and Pakistan) as well as
Mozambique.
Any part of this paper may be freely reproduced with the appropriate
acknowledgement.
The authors are responsible for the choice and presentation of the facts
contained in this book and for the opinions expressed therein, which are not
necessarily those of UNESCO and do not commit the Organization.
UNESCO expert, Abby Riddell, contributed to the planning and design of the
seminar as well as the design and writing of this compendium volume.
Published in 2006 by:

Division of Educational Policies and Strategies
United Nations Educational, Scientific and Cultural Organization
7, place de Fontenoy, 75352 Paris 07 SP (France)
UNESCO
Website: http://www.unesco.org/education/eps/
Rubric: Experience Sharing
Contents
Introduction...........................................................................................1
Context ......................................................................................................... 2
Common issues raised.................................................................................. 3
Acknowledgements ...................................................................................... 6
Decentralization of Education in Pakistan .........................................9

I. Introduction............................................................................................... 9
I.1. An Overview of Pakistans Education Reform ............................... 10
I.2. Decentralization of Education in Pakistan....................................... 14
II. Teacher Deployment and Management................................................. 16
II.1. Teacher Management ..................................................................... 16
II.2. Literacy Programmes Launched in Pakistan .................................. 18
III. Resources for Education ...................................................................... 24
III.1. Fiscal Transfers............................................................................. 25
III.2. New Financial Arrangements at District Level ............................ 25
III.3. Changes in Delegation of Financial Powers ................................. 26
III.4. Changes in Designation of Finances............................................. 27
III.5. Flexibility within Existing Budgets .............................................. 29
III.6. The Way the System Works Resources ..................................... 30
IV. Lessons Learnt and Road Map for Sustaining Ongoing Reforms........ 34
IV.1. Decentralization Unit-MoE .......................................................... 34
IV.2. Symposium on International Experience with Decentralisation and
Education ............................................................................................... 36
IV.3. Case Study on Fiscal Decentralization in Education .................... 36
IV.4. The Way Forward......................................................................... 38
Annexes ................................................................................................40
Annex 1: Report Guidelines....................................................................... 41
Annex 2: The Programme of the Seminar.................................................. 44
Abbreviations
ADP
AEO
AEPAM
AKU-IED
CCB
CIDA
DCC
DCO
DDC
DDEO
DDO
DEO
DFID
DOE
DOL
DSP
EDO
EDO-E
EFA
ESR
ESRA
FANA
FATA
GoodGEM
GST
HT
ICT
KPP
MNA
MPA
MSU
NEMIS
NCHD
NFBE
NFC
NRB
PITEs
Annual Development Programme

Assistant Education Officer
Academy of Educational Planning & Management
Aga Khan University - Institute of Educational
Development
Citizen Community Board
Canadian International Development Agency
District Coordinating Council
District Coordination Officer
District Development Committee
Deputy District Education Officer
Deputy District Officer
District Education Officer
Department for International Development
Department of Education
Department of Literacy
Devolution Support Programme
Executive District Officer
Executive District Officer- Education
Education For All
Education Sector Reforms
Education Sector Reforms Assistance Programme
Federally Administered Northern Areas
Federally Administered Tribal Areas
Good Governance & Educational Management
General Sales Tax
Head Teacher
Islamabad Capital Territory
Khushhaal Pakistan Programme
Member National Assembly
Member Provincial Assembly
Multi-Donor Support Unit (World Bank)
National Educational Management Information
System
National Commission for Human Development
Non-Formal Basic Education
National Finance Commission
National Construction Bureau
Provincial Institutes of Teacher Education
PLGO
PP
PPP
PRSP
PSDP
PTSMC
SAP
SC
SMC
TMA
TRC
UNESCO
UNLD
Punjab Local Government Ordinance

Presidents Programme
Public Private Partnership
Poverty Reduction Strategy Paper
Public Sector Development Programme
Parent Teacher School Management Committee
Social Action Programme
School Council
School Management Committee
Town Municipal Authority
Teacher Resource Centre
United Nations Economic, Social and Cultural
Organization
United Nations Literacy Decade
Introduction
The Dakar Framework for Action invited national governments to develop
Plans of Action on Education for All (EFA) before the end of 2002. In
response to this call, many countries have developed or strengthened existing
sector plans for the achievement of EFA and have begun implementing them.
However, experience has shown that at the time of developing their plans,
some countries have had difficulties in defining workable strategies and
translating them into clear-cut operational and reform actions. Delays have
been due to lack of experience in the subject.
UNESCO supports the strengthening of national capacities not only by
providing countries with expertise, but also by facilitating exchanges of
national experience among countries from different regions of the world. The
dissemination of experience and good practice is one of the means of
transferring technical know-how and skills and can help national managers to
identify practical solutions which best answer the problems arising from their
own education systems.
The issue of governance and decentralization is one of the issues most
frequently raised by country representatives and other stakeholders at various
national and international events and is often referred to as one of the factors
affecting the success of EFA implementation. This is particularly true in
countries with federal systems and the E-9 countries, where governance is a
major issue of concern within their decentralized administrative and
institutional settings.
Organizing an international seminar for these countries on the pressing issue
of governance promotes not only South-South cooperation, facilitating the
sharing of their experiences and best practices, but it also helps them to design
and implement their own country-specific strategies for accelerating the
achievement of EFA.
Teacher and Resource Management in the Context of Decentralization
Context
Decentralization has become a virtual mantra of development, emphasized
increasingly as the market, as opposed to the state, has been allowed to
exercise its influence on public policy. Taken to the extreme, this has entailed
the privatization of formerly state-run activities such as health or education,
but in between complete centralization and privatization are various types of
decentralization. These have commonly and increasingly involved the use of
performance assessment and results-based management as a means of
exerting state influence while still allowing for multiple nodes of decisionmaking. Such assessment and management practices have thus become part of
the panoply of tools that government uses to regulate an increasingly
decentralized environment.
Many different arguments are used in support of educational decentralization,
not least to ensure that decisions made closest to the educational beneficiaries
result in policies tailored to their particular contexts and requirements. Other
arguments in support of decentralization stem from a desire to increase the
efficiency and effectiveness of educational management. Large, cumbersome,
centralized bureaucracies can be slow and unresponsive. Further arguments
for decentralization are based on political expediency, to transfer the
responsibility for educational decisions and commonly, the accompanying
finance away from the national government. Thus, decentralization can be
used as a means of supplementing inadequate national resources.
Whatever the reasons behind educational decentralization, it is also important
to distinguish between different types of decentralization. There are many
patterns. Some involve merely a deconcentration of tasks, creating a regional
office that mirrors the national ministry. Some involve the delegation of
responsibility, where decisions taken at the centre are carried out by those
delegated authority at a lower level. And other types of decentralization
involve outright devolution, in which the responsibility for decision-making is
transferred to a lower level. In addition, some educational decentralization
involves all educational management and administration, while others focus
on particular sections, allocating responsibility for different tasks to different
levels of the administration. For example, teacher deployment and finance
may remain at the centre while textbook ordering and distribution may be the
responsibility of a local office.
Two key areas of educational decentralization that have extensive
ramifications for the achievement of EFA are teacher management and
deployment; and financial resource generation and management. How
2
Introduction
decisions are reached on the allocation of human and financial resources

across the various levels of decentralization in different countries will have a
major impact on the provision and quality of educational services. Whether
district or regional education officers are empowered and enabled to make
decisions concerning the targeting of key educational resources will
contribute to the responsiveness of the education system to local conditions
and needs and will influence the provision of quality education for all.
Different countries have worked out different arrangements across the levels
of responsibility for educational administration and management to deal with
governance in these key areas. Some of the actual arrangements are highly
dependent on particular contexts and inappropriate for replication elsewhere.
For this reason, the seminar focused on governance and not merely on
decentralization. The issues of common interest, whatever the nature of
decentralization, concern how decisions are reached, based on what
information, with what accountability, in turn based on what information.
Analysis of the effectiveness of systems of governance is also of common
interest: how are they judged to be effective? Does the system deliver on its
promises and achieve its targets? And, finally, how have the capacities been
developed of those staff given decentralized, governance responsibilities over
teacher deployment and management and resource mobilization and
management?
An outline of the questions to be answered in each national report was
distributed and formed the basis for the countries submissions (Annex 1).
Common issues raised

Four common issues can be identified across the reports prepared for the
seminar:
weak fiscal decentralization;
compensatory role of central government;
rationalization of allocation and deployment of teachers;
school-based management.
Weak fiscal decentralization

The national reports describe various forms and contexts of decentralization
to states, to districts, to municipalities, and to local communities and school
committees. Responsibilities and authority for delivering educational services
at all these different levels vary considerably. However, an underlying issue
concerns the sourcing of funds for any such services and the accompanying
management of service delivery. The Indian national report states succinctly:
When decentralization in education takes the form of deconcentration,
it is very difficult to ensure accountability of local administrative units
and support structures.
Issues of control versus legitimacy are raised. If teachers salaries are paid by
the state and not the local authorities, and if resource allocation decisions are
made in the state capital, for example through conditional grants, how is the
necessary accountability to the beneficiaries of the education provided at
decentralized levels to be developed?
The national reports also cover many different types of fiscal decentralization.
Some countries use block grants; others, such as Bangladesh, earmark funds;
some set financial norms for the percentage of fiscal revenue to go to
education, and so on. Indeed, the Pakistan national report points out how
incomplete decentralization to the district level, entailing mainly earmarked
finance, has created too few delegated powers regarding resource allocation
decision-making. The national report of Brazil also elaborates this point:
Unsuccessful results have involved the transfer of responsibilities
without any guarantee of the necessary reallocation of financial
resources. Such situations have reinforced proposals such as FUNDEB
and its important redistributive characteristic, i.e. guaranteeing the
transfer of financial resources, the key to reducing education
inequalities in the country.
Compensatory role of central government
The national reports describe various mechanisms used for equalizing
resources in areas having weak fiscal capacities, for example financial
transfers, which, like the block or conditional grants generally used,
commonly take the form of transfers to regions according to specified
minimum standards.
Introduction
The Chinese national report well illustrates the different roles taken by central
and state governments. Initially the policy shift to a socialist market economy
resulted in a heavy burden on peasants who had to pay educational surtaxes as
part of a drive for the diversification and mobilization of resources. The shift
in responsibilities for resource mobilization to the counties re-established the
compensatory role of central and state government, which subsidized poorer
counties.
In addition, several of the national reports describe the financial targeting as
well as the differentiation of educational services of particular, marginalized
groups. One of the implicit questions raised is what should be the role of the
state at whatever level in subsidizing marginalized groups or regions,
when such subsidies are by their nature economically inefficient and unlikely
to be self-sustaining.
Rationalization of allocation and deployment of teachers
Without exception, all the national reports focused on the challenges that
decentralization posed for rationalizing the allocation and deployment of
teachers. This issue is closely related to teachers qualifications, status,
support and professional development, and their integration within local
communities. Notwithstanding the fact that bringing teacher management
closer to the schools typically results in fewer delays in salary payments and
the potential for enhanced local supervision and support, decentralization, in
some countries, has created artificial barriers between states or districts,
making it difficult if not impossible for states experiencing teacher shortages
to draw on surplus teachers from other states. Additionally, as described in the
Nigerian national report, the decentralization of teacher management has been
clouded by parochial and ethnic sentiments, as well as poor supervision due
to greater familiarity.
The inability of many countries to afford the necessary complement of fully
qualified teachers has led some, such as Indonesia, to implement zero-growth
policies, while allowing the relaxation of qualifications and the hiring of
contract teachers. This phenomenon appears as community or private
provision such as PTA teachers in Nigeria, para-teachers in India, minban
teachers in China, temporary teachers in Egypt, etc., and has wrought havoc
with wage negotiations with teachers unions, given the different conditions
of employment applied to such contracted, temporary teachers outside the
civil service.
Mexicos decentralization has afforded a different pathway: it has included an
5

element of state-level wage negotiation under more general, national
agreements, together with a complex system of financial incentives for
teachers that are tied to school progress as well as school performance factors.
Particularly under wages and conditions of service that are insufficient for
raising a family, teacher absenteeism, unsurprisingly, is another common
issue discussed in many of the national reports, a partial answer to which
leads to another common, important issue raised in most of the national
reports: school-based management.
School-based management
School-based management within many different decentralized state
structures is featured as a promising pathway exemplified by both state
initiatives and pilot programmes of external development partners. In some
countries direct resource allocations are made to schools (e.g. in Mexico, and
in Mozambique, under the auspices of a World Bank project). In others, such
as Indonesia, such resource transfers are envisaged in the long term.
Community involvement of a different sort, that of tailoring curriculum,
language development and specific courses to marginalized groups, is the
focus of the two thematic reports prepared for the seminar.
Acknowledgements
The national representatives who participated in the seminar include Akhtary
Khanam and Abdus Sattar (Bangladesh); Oroslinda Maria Taranto Goulart
and Maria Isabel Azevedo Noronha (Brazil); Wang Libing and Zhu Xudong
(China); Hisham Abdel Muniem Al Sayed Al Sankari and Salah Eldin
Mohamed Shater (Egypt); Smt. Prerna Gulati and K. K. Biswal (India); Jalal
Fasli and Ella Yulaelawati (Indonesia); Jose Gutierrez Garcia and Leticia
Gabriela Landeros Aguirre (Mexico); Paula Maria Guiao de Mendonca and
Moises Celestino Matavele (Mozambique); Charles Maduegbuna Anikweze
and E. O. Oga (Nigeria); T. M. Qureshi and Mohammad Saleem (Pakistan).
In addition, we were fortunate to have presentations from K. M. Acharya,
Joint Secretary and Kumud Bansal, Secretary, Elementary Education and
Literacy, Ministry of Human Resource Development, New Delhi; Y. S.
Rajasekhara Reddy, Chief Minister, Mohan Kanda, Chief Secretary, and S.
Chellappa, Principal Secretary (Education), State Government of Andhra
Pradesh. Our thanks go to all, including the other report writers/presenters of
the synthesis report and the two thematic reports: R. Govinda, National
6
Introduction
Institute for Educational Planning and Administration, I. Subba Rao, Principal

Secretary (Health, formerly Education), and Zahid Ali Khan, The Siasat
Daily. Finally, we must thank the Administrative Staff College of India, S. K.
Rao and Gautam Pingle for their contributions, not least to the logistics of the
seminar itself.
UNESCO expert, Abby Riddell, contributed to the planning and design of the
seminar as well as the design and writing of this compendium volume.
The originality of the seminar, which gave rise to the present publication, lies
in creating a stimulating and rich dialogue between planners and
administrators. This dialogue, although taken for granted, usually constitutes a
stumbling block at local level where education administrators or civil service
managers are the key coordinators of the implementation process. The latter
are not always fully equipped to carry out this task effectively.
The collaboration between the two national institutes, namely NIEPA based in
Delhi and ASCI based in Hyderabad, provided the seminar with a broad
combination of education planning expertise as well as corporate management
and public administration techniques. The participation of media involved in
educational programmes added a third and rich dimension. Though the
seminar addressed issues common to the E9 countries, the experience of
Mozambique in donor mobilization and coordination was highly appreciated.
Through this publication, UNESCO hopes to disseminate more widely the
lessons drawn from the experiences of the participating countries to specialists
in other countries. The different contributions that we present here can play a
part in nurturing useful reflection and debate to improve planning and
implementation of education policies in other countries striving to overcome
the challenge of attaining the goals of Education for All.
Decentralization of Education in Pakistan

I. Introduction
Pakistan comprises four provinces: Punjab, Sindh, North West Frontier
Province (NWFP) and Balochistan, and some federal units, which include the
Islamabad Capital Territory, Federally Administered Tribal Areas (FATA)
and Northern Areas (FANA). Area-wise, Balochistan is the largest province
with over 45 percent of the countrys area while almost one-half of the
countrys population (146.248 million) lives in the province of Punjab.
Administratively, Pakistan has a federal set-up. At the centre is the Federal
Government which comprises several ministries and divisions. Each ministry
or division is headed by a Secretary who, in turn, is responsible to the federal
minister. The ministers form the federal cabinet, headed by the Prime
Minister. A similar pattern of administration exists at the provincial level. A
large number of federal ministries have their counterparts in the provinces
which are known as departments.
The colonial administrative pyramid, guided by the paradigm of bureaucratic
control for managing dissent and mobilizing resources, consisted of wellstructured geographical tiers. The colonial arrangements persisted for fiftyfour years in Pakistan.
Under the new structure, (from 2001, with the promulgation of the Local
Government Ordinances, divisions, as an administrative unit in the province,
have been abolished and district Governments have been installed for districtbased planning, management and administration. There are a total of 102
districts in Pakistan and 13 agencies of FATA. Districts are further divided
into 380 talukas or tehsils (sub-districts).
The Local Government Ordinances 2001 paved the way for the establishment
of a three-tier local government system comprising districts, tehsils and
unions. Each tier of local government has its elected council and
administration, and is headed by an elected Nazim. Thus the District
Government has up to twelve administrative departments, a council and is
headed by the District Nazim. Under the new system, administrations are
accountable to elected councils and ultimately to the electorate.
The new local government system is designed to take decision-making closer
9

to the people. It ensures that planning and development are carried out in
accordance with local needs. The system encourages community participation
in governance. By taking government closer to the people, the devolved
system also promotes transparency and accountability. The overall effect will
be better service delivery and poverty alleviation (DSP, 2004). Elections for
the new local governments were held in phases; most of the elected officials
had assumed their positions by 14 August 2001. The Government of Pakistan
has undertaken devolution to facilitate people-centred participation, greater
accountability and transparency. As part of these overall reforms as stated in
the Provincial Local Government Ordinance 2001 and reflected in the
Education Sector Reforms Action Plan 2001 2005, the district rather than
the province, has become the operational tier of governance and the focus of
all development activity. The main purpose of devolution is to improve
service delivery at the grassroots.
Figure 1: Pre-Devolution and Post-Devolution Scenario
Pre-Devolution Administration
Classical Pyramid
Post Devolution
Flattening
Federal Government
Federal
Province
Provincial Government
Division
District
District
Sub-district/Tehsil
Union Council
Village Councils
Citizen Community Boards
PTAs/SMCs/School Councils
Tehsil/sub-district
Markaz
Union Council
PTAs/SMCs
As Figure I illustrates the Local Government Plan 2000 for devolution

eliminated the Division and Markaz tiers from the administrative
hierarchy, mediating the tiers within the district by Village Councils, Citizen
Community Boards and PTAs/SMCs; whilst the latter two are emerging and
ongoing, the village councils have yet to emerge (Jamil B.R. 2002).
I.1. An Overview of Pakistans Education Reform
According to the Constitution, education in Pakistan is a provincial subject.
However, the administration of public education in the country is partly
10
Case of Pakistan
centralized, with the Federal Ministry of Education responsible not only for
the development of policy statements and national plans and budgets but also
for the overall curriculum development and standard of education.
The policy, planning and coordination of major components of Education For
All i.e. Non-formal Primary Education, Adult Literacy and Early Childhood
Education is the responsibility of the Planning Wing of the Ministry of
Education, whereas the implementing agencies are the Provincial Education
Departments, District Governments and NGOs. Learning Achievement and
training in essential skills (curricula, examination, evaluation, standard of
education, learning/competency level, teacher training) are under the purview
of the Curriculum Wing of Ministry of Education and the provincial line
departments /organizations. Special Education and Social Welfare Division
manages the education for the special persons/handicapped and children with
special needs.
The provincial Education Departments are headed by their respective
Provincial Education Ministers. The civil servant in charge of the department
is the Provincial Education Secretary. The provinces are further divided into
districts for the purpose of administration. The head of the Education
Department in a district is Executive District Officer (EDO) Education and
head of the Literacy Department (in case of Punjab and Sindh only) is
Executive District Literacy (EDO Literacy). In the Provinces of NWFP and
Balochistan, literacy is part of Education Department. The hierarchy then runs
down to the District Education Officer, Sub-district Education Officer,
Supervisors or Assistant Sub-district Education Officers.
At the grassroots level i.e. the union council level, Learning Coordinators
(LCs) provide academic guidance as well as supervise the schools. The
administrative structure has been decentralized under the Devolution Plan
August 2000, which was enacted and promulgated on 14 August 2004.
Primary Education Directorates, Village Education Committees/School
Management Committees have been set up in the provinces at grassroots
level. Elementary Education in Pakistan has three stages. The first stage is
called Pre-Primary or Early Childhood Education i.e. Katchi, kindergarten etc.
and covers children between 3-5 years old. The second stage, primary
education, comprises 5 classes, I to V, for 5-10 year-olds. The third stage is a
three-year middle stage, classes VI to VIII, for 10-13 year-olds. Secondary
education is in two stages, for 13-16 year-olds, and for 16-18 year-olds.
At the Federal level, there exists a Curriculum Wing in the Ministry of
Education. In the provinces, Curriculum Bureaus and Text Book Boards exist
11

as separate institutions whose activities are coordinated by the Federal
Curriculum Wing. The syllabi are common to all the provinces and to that
extent the curriculum is centralized. However, the provinces are free to
interpret the outline of a course in view of the conditions existing in that
province. The provincial Text Book Boards have the responsibility to develop
and produce textbooks up to grade XII for their own province. A National
Review Committee, represented by national and provincial experts, approves
the scripts of textbooks produced by all Text Book Boards. Recently, a
system of open competition for textbooks has been introduced. The medium
of instruction at primary level is Urdu or a provincial/local language.
Examinations are generally held annually, and are the sole criterion to
promote students to higher classes or to retain them in the same class.
However, recently, a system of automatic promotion has been introduced in
some schools up to grade III. Public examinations by the education
department are held at the end of the fifth year, and at the end of grades. VIII,
X and XII. Outstanding students can also compete for merit scholarships.
Ninety Colleges of Elementary Education offer teachers training programmes
for primary school teachers, 16 Colleges of Education offer graduate degrees
for secondary school teachers, and 9 university departments train teachers at
the masters level. There are only 4 institutions, one in each province called
Provincial Institute of Teacher Education (PITE), which offer in-service
teachers training. Besides these, the Allama Iqbal Open University,
Islamabad, offers a very comprehensive teachers training programme based
on distance learning; its total enrolment is about 10,000 per annum of which
7,000 complete various courses every year. A summary of school core
statistics and EFA data is presented in Tables 1 & 2.
12
Case of Pakistan
Table 1: Comparison of School data for the year 2003-04 with 2002-03
Province/ Regions
Years
Schools
Enrolment
Teachers
2002-03
63,673
9,081,044
335,435
Punjab
2003-04
63,320
9,294,824
298,665
Difference
-0.55%
2.4%
-11.0%
2002-03
44,149
3,283,986
138,782
Sindh
2003-04
44,149
3,515,244
138,782
Difference
0.00%
7.0%
0.0%
2002-03
25,581
2,857,568
96,894
NWFP
2003-04
25,580
3,195,790
97,173
Difference
0.00%
11.8%
0.3%
2002-03
11,200
771,550
34,355
Balochistan
2003-04
11,417
813,763
37,699
Difference
7.00%
5.5%
9.7%
2002-03
5,951
564,724
23,599
AJK
2003-04 *
5,948
567,768
23,594
Difference
-0.05%
0.5%
0.0%
2002-03
1,590
140,484
4,942
FANA
2003-04
1,590
147,179
4,942
Difference
0.00%
4.8%
0.0%
2002-03
4,852
419,879
18,556
FATA
2003-04
4,882
496,076
18,442
Difference
0.62%
18.1%
-0.6%
2002-03
395
157,873
5,737
ICT
2003-04
397
160,511
5,973
Difference
0.51%
1.7%
4.1%
2002-03
157,391
17,277,108
658,300
Pakistan
2003-04
157,283
18,191,155
625,270
Difference
-0.07%
5.3%
-5.0%
* : Estimated figures
** : Provisional figures
Source: NEMIS, Academy of Educational Planning & Management, Islamabad
Detailed data on number of educational institutions, student enrolment and

number of teachers, disaggregated by sex, is available at annex: I
13

Table 2: SOME CORE EFA INDICATORS IN PAKISTAN
S.
No
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
Male
Total
Adult Literacy rate 15+ (%) 2000-04

Adult Illiterates 15+ (In Millions) 2000-04
Youth Literacy Rate (15-24) (2000-04)
Youth Illiterates (15-24) (In Millions) (2000-04)
Gross Enrolment Ratio (GER) In Pre-Primary
Education/ ECCE (%)(2001)
Gross Intake Rate (GIR) in Primary Education
(%)(2001)
Enrolment in Primary Education (in Million) (2001)
Gross Enrolment Ratio (GER) in Primary
Education (%) (2001)
Net Enrolment Ratio (NER) in Primary Education
(%) (2001)
Out-of-School Children (In Million) (2001)
Enrolment in Secondary Education (2001) (in 000)
Enrolment in Technical and Vocational Education
(2001) (In 000)
Gross Enrolment Ratio (GER) in Secondary
Education (%) (2001)
Post Secondary Non-Tertiary Education(2001)
Total Teacher Primary (000)(2001)
Pupils / Teachers Ratio Primary (2001)
Total Public expenditure on education as % of GNP
(2001)
Total public expenditure on education as % of total
Government expenditure (2001)
41.5
51.536
53.9
13,537
54.7
62.7
28.5
60%
42.0
61%
46.2
93.9
108.1
78.8
0.73
14,562
73.2
83.7
41%
62.0
0.74
59.1
67.5
50.0
0.74
8.1446
5,790
83
3331.8
4812.7
38%
17%
23.9
28.6
18.9
53.4
65.5
923.6
329.8
44
1.8
Female
GPI
(F/M)
0.53
Indicators
0.64
0.74
0.66
45%
37%
7.8
Source: EFA Global Monitoring Report 2005 UNESCO, Paris.
I.2. Decentralization of Education in Pakistan

Some educationists contend that seeking legitimation through local
government has been a recurrent pattern adopted by the military, as evidenced
in Pakistans history. In 1959, Field Marshall Ayub Khan passed the Basic
Democracies Order for Local Government reforms, devolving representation
to the village level, to serve as an electoral college. In 1979, the Local
Government Ordinance was promulgated by General Zia ul Haq to activate
local governments. That move followed Bhuttos experiment with Islamic
Socialism; in which nationalization led to centralization and dilution of local
councils (Baela R. Jamil, 2002).
Influenced by the call for Education for All made at Jomtien (Thailand) in
1990, multiple democratic governments in Pakistan have attempted to broaden
participation in education through mobilization of NGOs and communities.
The focus was on issues of access, particularly for girls, and quality.
14
Case of Pakistan
Numerous pilot programmes were initiated in hopes that model programmes
would be created and implemented on a larger scale. Although community
support often depended on government and donor financing, the private sector
began to play a more active part at all levels of the education spectrum.
Public policy in education began to consider the possibility of utilizing
decentralization, privatization, and equity to correct the runaway state
(sometimes also referred to as the failed state).
However, some other educationists contend that devolution in Pakistan is
occurring in the context of low educational attainment, poor coverage, and
highly unequal access across income groups, between urban and rural
populations, and between males and females, as a way of deflecting criticism
away from the federal government.
Education decentralization is located, in fact, within Pakistans wide, macrolevel reforms, including its poverty reduction strategy and its political,
economic and social sector reforms. In the Presidents speech at the Pakistan
Human Development Forum in January 2002, he emphasized that Education
is the anchor of my economic revival strategy (ESR Action Plan, 2002).
Education Sector Reforms Action Plan 2001-2005 is not a policy per se, but
an Action Plan to implement the National Education Policy of 1998-2010. In
fact, it is informed by the evolving national reforms, which include not only
the devolution process, but also international events and initiatives. The ESR
Action Plan has been developed to address the delivery gap and poverty
reduction through education entitlements. It has six thrust areas: Literacy,
UPE formal and non-formal, technical stream at secondary level, higher
education, underpinned by quality and public private partnerships. Seventy
percent of the ESR comprises the classical EFA areas of UPE, Adult Literacy
and Early Childhood Education. A summary of additional financial
allocations made under ESR Action Plan during 2001-2004 and its
achievements may be seen at Annexes II & III respectively.
15
II. Teacher Deployment and Management

II.1. Teacher Management
a. Responsibilities and Authority Level (Teachers)
In Pakistan, the minimum academic qualifications required for teaching at
primary level (grades I to V)/middle (grades VI to VIII) are Matriculation (10
years schooling) and a one year teaching course, called the PTC and twelve
years schooling and a one year teaching course called the CT respectively.
However, in the province of Punjab, a BA is the minimum academic
qualification required for teaching primary education. District Government is
responsible for hiring and firing of teachers, their promotion, usually on the
basis of seniority, their transfer, as well as for , the appointment of Parent
Teachers Association/School Management Councils etc. However, teachers
pay scales are set by the Provincial Education Department, and the
appointment of new teachers, BPS-16 and above, is made through the Federal
and Provincial Public Service Commission. Teachers pay rises are regulated
by Government policy, rarely mediated by the views of the Community
Education Committee/Parent Teachers Association/School Management
Councils.
b. The Way the System Works Teachers
Pakistan has a well designed system and chain of accountability developed at
the time of British Rule in the late nineteenth century and subsequently
revised and modified periodically, to serve the needs of the country.
Normally, 30-40 schools are supervised and accountable to such district/
tehsil/ taluka level Education Officers through their principals and
Supervisors/Learning Coordinators. At the next level District Education
Officers (DEO are accountable to Executive District Officers (Education),
who in turn, are accountable to District Coordinating Officers (DCO) and the
District Nazim on the one hand, and the Director of Public Instruction (DPI)
and the Secretary of Education (ES) at provincial level, on the other hand.
There is a separate Department for Adult Literacy and Non Formal Education
in the province of Punjab headed by Executive District Officer- Literacy. .
The present system of local government i.e. District Nazim, District
Coordination Officer and Executive District Officer (Education and Literacy)
was introduced in 2001 under the devolution plan.
Although more than 90% teachers deployed in schools are academically and
16
Case of Pakistan
professionally qualified; yet they do not get enough chance for refresher
courses on regular basis. Recently government has introduced Teacher
Training Programme for in- service and on the job training of teachers which
has improved the situation.
Decentralized System is comparatively more effective. Under this system,
education planning, management and monitoring/evaluation have been
decentralized to district level. However, it has been observed that the new
system is facing certain problems such as shortage of qualified personnel,
facilities and services and ambiguity in functions, responsibility and authority,
which will be hopefully addressed with the passage of time.
The targets set in education and literacy, though ambitious, yet considerable
progress has been made to achieve these targets despite many constraints.
The system is evaluated on the basis of result of the promotion exams.
Besides, research and evaluation studies and survey are also conducted to
evaluate the system especially to assess the quality of education. Recently
Punjab Education Department has developed a standard manual to evaluate
system.
Under the devolved system of education, accountability to
beneficiaries and local groups has increased to some extent. There is a wider
participation beyond the government. Number of Non Governmental
Organizations (NGOs), International Development Partners, Support
Organization such as National Commission for Human Development
(NCHD), Deeni Madaris, Private Sector and individuals are taking active role
in promotion of education and literacy in the country. Moreover, Education
Foundations at federal and provincial levels have been established to promote
education through Public Private Partnership (PPP).
Information is gathered and used for the purposes of accountability through
the Executive District Officer, Sub District Officer, Learning
Coordinator/Supervisor and Head Teacher within Education Department.
Whereas, outside
the Education Department the information for
accountability is collected through Village Education Committee/School
Management Councils, Nazims and Councillors under local government as
well as through media and public opinion. Recently a new system for
monitoring and evaluation has been introduced in each district of Punjab for
third validation and evaluation.
In fact, the Devolution Plan in Pakistan was announced in August 2000 and
corresponding enactment by the provinces made and its enforcement starting
on 14th August 2001. Since then no impact study could be carried out. As
such, it will be difficult to claim its effectiveness at this stage.
17
Pakistan has taken a number of initiatives to promote Education for All in the
country. These inter alia, include:
Preparation and launching of National Plan of Action on Education for

All 2001-2015.
Capacity building of the provinces and districts in Education For All.
Establishment of National, Provincial and District EFA Units and EFA
Forums.
Preparation of provincial and district level EFA Plans.
Provision of additional resources for promotion of Education For All.
Mobilization of Resources through International Development Partners.
These initiatives have helped in launching EFA programmes as a movement

throughout the country. However, the set targets could not be achieved
mainly due to lack of adequate financial resources. Quality of Education is
still a big challenge. Marginalized children are being reached under various
programmes launched in the Public and Private Sectors. Deserving Children
especially girls are given special incentives in the form of
scholarships/stipends, exemption of school fee, edible oil, cooked meal and
nutrition etc. As already mentioned, the devolution in Pakistan has been
initiated in recent past for which impact evaluation / research studies could
not be made so far.
II.2. Literacy Programmes Launched in Pakistan
A number of literacy programmes have been launched in Pakistan. However,
most of them could not prove much effective due to various reasons. Main
projects and programmes launched in Pakistan for adult literacy since 1990
are as follows.
a. Eradication of Illiteracy from Selected Areas of Pakistan
This project was launched by the Prime Minister's Literacy Commission, with
a total cost of Rs. 72.83 million from 1992-94. The target was to make literate
174,460 adults (both male and female). The salient features of the project
were as follows:
Opening of 3,460 face-to-face literacy centres and 200 TV literacy centres

in 5 selected districts i.e. Islamabad - Hafizabad Karachi East - Quetta
and Tehkal Bala.
18
Case of Pakistan
Implementation through NGOs and community with strong motivational

drive.
Area specific approach.
Under this project 138,025 (79%) adult illiterates were made literate
against the target of 174,460. Out of these 120,082 (87%) were females
and 17,943 (13%) males.
b. Quranic Literacy Project 1992-94

Knowledge has been highly esteemed in Islam. Seeking knowledge is the duty
of every Muslim (man and woman). Islam stresses life long education. The
last Prophet of Islam, Hazrat Muhammad (P.B.U.H) emphasized the pursuit of
knowledge from the cradle to the grave. The first Quranic Ayah starts with the
message Iqra (read). Motivated by the golden teachings of Islam, Pakistani
women attach high importance and play an important role in learning and
transmitting Islamic teachings and knowledge to the future generations. The
most valuable contribution of Pakistani women especially the mother, is the
teaching/learning of the Holy Quran which is the last Divine Book and the
most comprehensive code of conduct of life. The subject project was initiated
in 1992 with a cost of Rs.4.06 million to make females literate through their
knowledge and reading skills of the Holy Quran. The project aimed to test as
to whether the females who were able to read/recite Holy Quran could be
made literate in Urdu with greater ease and in shorter time for which a special
primer was introduced. The project was tested in five union councils in 4
districts surrounding Islamabad. 494 face-to-face centres were established, at
places provided by the community. The teacher was paid honoraria of Rs.500
per month. Four cycles of 6 months each were completed. 10,867 female of
10+ age group were made literate through this project. The limitations of this
programme are given below:
Timetable arrangement sometimes kept some of the literacy teachers busy

throughout the day, as all the learners were not able to attend the centres
at the same time.
There was no incentive in any form for the learners, due to which dropout
could not be checked.
The rural community is too pre-occupied in marriage and death
ceremonies, harvesting work, and festivals.
Hence the total number of days attended by learners was not up to the
required level, and their actual involvement in the learning process during
the six-month cycle was much reduced in many cases.
In one of the districts, parents hesitated in letting their girls learn the
19

writing skill although they let them learn the reading skill.
c. Establishment of 10,000 Non Formal Basic Education Schools
The Prime Ministers Literacy Commission in 1995 formulated a project titled
"Establishment of 10000 Non-formal Basic Education Schools" with the total
cost of Rs. 1,263.375 million. The project, based on the idea of a home school
to be run through NGOs and Cobs, was to be implemented within a period of
five years. However, the project suffered due to financial constraints.
The Education Policy (1998-2010) recommended to expand the programme to
a larger scale, by opening 75,000 NOBEL Community Schools during the
next three years. The Prime Minister of Pakistan, while announcing the
national agenda, emphasized on Universal Literacy for children and
constituted a committee for preparation of an Action Plan. The Action Plan
also recommended the expansion of NOBEL Community Schools
Programme. Realizing encouraging outcome of the project, the Federal
Cabinet directed to revise the project by adding 75,000 NOBEL Schools. As
such, the same PC-I has been revised as Establishment of 82,000 NOBEL
Schools. ECNEC approved the expansion of the programme on July 11,
1998 from 7,000 to 82,000 NOBEL Community Schools with a total budget
of Rs. 11214.898 million and the programme was included in the SAPP II.
However, its expansion was to be made after an evaluation of the existing
schools by the third party.
Salient Features of the Project:
Basic Education Schools offer learning opportunities to those missouts/drop-outs included under the age group of 6-14 years.
An educated person, preferably a trained PTC to be contracted for the task
against a fixed emolument of Rs.1,000/- per month. In case trained PTC
teacher is not available at local/ village level, simple Matriculates are
considered. In backward areas, the educational qualification is also
relaxed.
Teaching aids like black boards, charts, mats etc. for students are
provided by the Government.
Learning materials in the form of books, notebooks, pencils, slates etc. are
supplied to learners free of cost.
A condensed non-formal primary level basic education course has been
developed for dropouts and out of school youth of age 10-14 and above.
[Curriculum of formal primary school system is used for all fresh entering
children of age 5-9.]
20
Case of Pakistan
Preference has been given to the establishment of schools for females.

Final examinations are conducted by Examination Teams headed by
authorized representatives from District Education Offices. Graduates of
Non-Formal Basic Education Schools are eligible for admission in 6th
Class in formal schools.
Schools function at places provided by the community free of charge.
These may include public places, Mosques, community centres, buildings
spared by philanthropists, or residence of teachers. For dropouts and
missed-outs of 10-14 age group, existing school building can be used in
the evening, wherever possible.
So far around 9000 Non formal Basic Education Schools have been
established through out the country which hopefully will be increased to
40000 in next 2-3 years. Almost all the NOBEL schools are in Rural Areas or
Urban Slums; 80% of teachers in these schools are female; and total
enrolment is 320,387 with almost 31% MALE students & 69% FEMALE.
This project has certainly helped in improving the access at primary level,
which is evident from the following statistics:
Table 3: NOBEL Schools Data Sheet
Province/Area
Punjab
Sindh
NWFP
Balochistan
AJK
FATA
FANA
ICT
NGOs
Total:-
112
30
33
09
---07
Schools
5 024
1 227
1 618
524
57
35
127
365
Enrolment
19 1534
36 810
59 576
14 327
1 514
1 856
3 820
10 950
190
8 977
320 387
A new project for opening of Non-formal Middle level schools has been
prepared and being processed for approval. Allama Iqbal Open University has
already established system of Non formal Education and distant learning last
year, which will be evaluated on completion of first cycle/phase of the project.
d. Crash Literacy Programme
The Ministry of Education planned a Crash Literacy Programme in May 1998.
The purpose of the programme was to increase participation rate by making
maximum use of the available resources like school buildings and teachers
21

during summer vacations and evening hours. This programme was aimed at
promoting literacy and basic education in the country. To make the
programme cost effective, the existing school buildings with all the
infrastructure of shelter and supplies were used to open literacy centres. The
teachers who were qualified, trained and available during summer vacations
(June - September, 1998) were engaged for the programme. They were paid
nominal honorarium for this extra duty after a short orientation.
The students were quite free from any obligation of school uniform and were
provided with free textbooks and learning materials. The location of the centre
was nearest to the majority of the beneficiaries/ out of school children.
Salient Features of the Programme:
The subject programme started in the Federal Areas of Islamabad and in the
province of Punjab, as a pilot project. The salient features of the programme
are as follows:
Focus has been given to rural girls/female illiterates and also to provide a
second chance to out of school children within the age group of 6-14
years.
Around 87 literacy centres opened in the Federal Area and 222 schools in
the Province of Punjab.
For each centre/ school services of a teacher were provided who was paid
Rs. 1500/- per month as salary/honoraria in Federal areas and Rs. 1,000/in Punjab.
The syllabus prepared by Allama Iqbal Open University was selected for
the course.
Teaching/learning material was selected out of the literacy materials
developed through National workshops as well as books and primers
taught in formal schools.
Literacy Teachers were given brief orientation/training for the purpose.
A literacy campaign was also launched to create awareness amongst the
target groups.
Students were paid Rs. 20/- per attendance as an incentive (in Punjab
only).
Learning material was provided free of cost.
Unit cost of the programme was around Rs. 1,899 per student.
22
Case of Pakistan
Output:
Federal Areas Programme:
Under the Federal Areas Crash Literacy programme, about 87 literacy centres
were opened in three phases. The total enrolment of these centres was around
1500. The assessment/evaluation test conducted by the Ministry indicated that
82% qualified/passed. Moreover, the literacy programme/campaign created
awareness amongst the masses and local communities who were motivated to
play an effective role in eradication of illiteracy. The total cost of the project
was only Rs. 6.4 million.
Punjab Literacy Pilot Project:
The Punjab programme was successful in terms of enrolment. A target of

5550 students was fixed and the Department was able to meet 96% of the
target. In a few girls schools, enrolment exceeded the maximum number of
25 students per class and the girls in excess of the maximum limit attended the
centre without any financial incentive. This showed encouraging prospects
and so was the number of parents who were willing to send their children to
formal schools after the Pilot Programme.
Encouraged by the results of this programme, the Government of the Punjab
is undertaking Phase II of the programme with a tenfold expansion. The target
enrolment was 50,000 students, for which 1668 centres of 30 students each
were opened. The honoraria of teachers were raised to Rs.1500/- with added
financial incentives related with the results of the final examination. The
monitoring system was strengthened and the course contents were revised.
Expansion of the programme was considered in terms of enrolment and also
in terms of the support from the community. The total cost of the project was
Rs.10.5 million.
e. Literacy Programmes by NGOs
The programmes launched by NGOs in basic education and literacy at the
provincial and local levels are in addition to the above. Some of the
programmes run by well-established NGOs are reported to be very effective
and productive.
Non-governmental Organizations (NGOs) have been actively involved in the
promotion of literacy and adult education since 1990. In 1992 the NGOs were
involved in the project namely "Eradication of Illiteracy from the Selected
23

Areas of Pakistan". Thereafter, NGOs have been coming forward in the field
of literacy and non-formal education. Adult Basic Education Society (ABES)
and BUNYAD in Punjab. SHOAA in Balochistan and Khyber Welfare
Association in NWFP were the NGOs, involved in the Pilot Literacy Projects
of 1992. BUNYAD has opened number of literacy centres in Punjab and also
got International Literacy Award.
In 2001-02, a new programme for opening of Adult Literacy Centres was
launched under Education Sector Reform (ESR) Programme. Around 13,000
Adult Literacy Centres have so far been opened throughout the country under
this programme. It is comparatively more effective programme. Besides, a
new project for promotion of functional literacy and skill development has
been prepared which is likely to be launched soon. United Nations Literacy
Decade (UNLD) is another programme sponsored by UNESCO and JICA,
which is at the final stage of preparation.
Private Sector Schools are expanding in Pakistan. However, it is expensive
and beyond the reach of poor segments of population. At present, around
40,000 private institutions (Primary to University) are functioning throughout
the country. Private Sector participation in educational development is 20-30
percent of the total. A number of successful innovations have been
implemented in private sector for poor and middle class population. These
include adopt-a-school program, Baithak School, maktab madarsa school, etc.
Private schools established in the posh areas are better managed/monitored
and evaluated. Resultantly, the quality of Education in such private schools
for elites is generally better than Public Sector Schools. The quality of
education of remaining private schools catering to the general public varies
significantly. Since, Non-formal Basic Education Schools and Adult Literacy
Centres (ALCs) are run by the NGOs under the supervision of Literacy and
Non Formal Education Department; hence, Non-formal school teachers as
well as literacy centre teachers are hired and fired by the Non Governmental
Organizations (NGOs) in consultation with concerned education department.
Firstly, it is very cost-effective approach. Secondly, it ensures availability of
teachers at local level, even at far flung areas where certified teachers are not
available. Thirdly, it ensures better monitoring system through public private
system.
III. Resources for Education

The ESR Action Plan has identified a variety of financing options for different
programmes. These include:
24
Case of Pakistan
Additional Budgetary Support for the Provinces in PSDP / ADP

Grants from Development Partners
Loans from Development Partners
Shift from recurrent to development expenditure
Shift within Development Budgets from other areas to ESR
To some extent, these alternatives were previously available to provinces;

districts are likely to have greater autonomy in expanding their choices post
devolution.
Administrative and financial powers of government functionaries are
inextricably linked with the grade or category of the official carrying more
weight than the administrative/ management responsibilities attached with a
particular position. Areas identified for measuring aspects of fiscal
devolution, therefore, include:
Fiscal transfers
New financial arrangements and options
Changes in delegation of financial powers
Shift in designation of finances i.e. development, non-development,
(recurring) etc., and
Flexibility for need based allocations within existing budgets.
III.1. Fiscal Transfers

There are two kinds of issues of relating to fiscal transfers; one, the fiscal
transfer mechanism proposed by the National Reconstruction Bureau and two,
procedures for release of funds to districts. The fiscal transfer mechanism is
based on NFC Award, while the latter has currently been resolved with
provincial governments making monthly releases of funds to districts since
June 2002.
III.2. New Financial Arrangements at District Level
Prior to devolution, all funds at the District level were channelled into one
account. Account No.1 technically a provincial account which included
special grants e.g. from the President, Governor, etc. Unless funds placed in
this account were utilized by the end of the financial year they reverted back
to the province. Initially, the account was retained under devolution and the
PSDP funds allocated to the districts were placed in it. With the setting up of
25

district governments a new Account No. 4, which is a District account, has
been created under the Local Government Ordinance. It is non-lapsable and
all finances generated at the district level or allocated to districts under special
programmes/grants are placed in this account. The ESR/EFA funds,
Presidents Programme grant and the Khushhaal Pakistan Programme funds
were allocated to this account. This has created flexibility in the utilization of
funds.
While there is a Tehsil/Municipal Authority (TMA), currently these
administrative units have no responsibility for education. In fact, the
responsibility for all those schools that had been under the town/municipal
authorities have been given to the district government. The same is the case
with regard to the Union Councils. Consequently the responsibilities of the
District Government have increased tremendously, for which additional
resources are required, and the capacity of district governments for managing
the requirements of financial devolution is critical to its success.
The District Coordinating Officer (DCO) is the Principal Accounting Officer.
This is a new post created under devolution, which consolidates all financial
powers at the district level. Prior to devolution each department reported to its
relevant Secretary at the Provincial level. Similarly all accounts were also
submitted through this channel. The DCO is accountable to the District
Coordinating Council headed by the nazim. Similarly, the EDO-Education as
compared to the DEO in the pre-devolution period is now answerable to the
DCO at the district level.
III.3. Changes in Delegation of Financial Powers
The Delegation of Powers under Financial Rules and the Powers of Reappropriation of Rules 1962 have been amended in the wake of devolution.
Comparison of the pre and post devolution scenarios reflects that the
authorization of funds has been devolved according to the category of the
officer. This may be clarified as follows:
DCO is the principle accounting officer of the district.

EDO (Education) can now authorize expenditure up to Rs 600,000,
whereas before devolution the limit was Rs2,500, or up to Rs25,000 with
a quotation before expenditure.
DEO can expend the contingency grant used regularly according toneeds.
There is no fixed amount for the DEO.
Head Teacher (HT) can authorize expenditures from the school fund and
also raise funds for the school from the community.
26
Case of Pakistan
SMC monitors school finance.
The comprehensive comparative statement of delegation of financial powers,

juxtaposed in Table 4, delineates the differences between pre-devolution and
post-devolution powers of district based officers.
III.4. Changes in Designation of Finances
Decision making powers in connection with designation of finances including
changes in the size of the tied/recurring expenditure i.e. salaries and the
development budget lie with the provincial government. There is no formula
for the proportion of funds to be made available for development related
activities which would have a direct impact on the quality of education. Under
the current (recurring) expenditure there is provision of 10% contingent
expenditure and this expenditure is usually used for non-salary items.
Table 4: Comparative Statement of Delegation of Financial Powers
S.
No
Nature of Powers
1.
Creation of posts
2.
Abolition of posts
3.
i)
Sanctioning
Expenditure
debatable
to
contingencies'
(a)To sanction expenditure on items specifically
shown in the budget estimates in details
(b)To sanction expenditure in cases where lump
sum budget provision or allocation of funds
exists and individual items are not specified in
details.
Local purchase of stationery
ii)
Addition to or repairs of instruments and furniture
iii)
Expenditure on rent of non- residential buildings

and land.
iv)
Freight for movement of Government properly.
DCO
EDO
v)
Electricity and water charges and taxes.
DCO
EDO
To Whom
Delegated
27
Not
delegated
Not
delegated
DCO
EDO
DCO
EDO
DCO
EDO
DCO
EDO
Extent
Before
Devolution
After Devolution
Full Powers
Each
item
exceeding
Rs. 2,000/-
Rs. 20,000/not
Full Powers
Rs. 500/- at a time
Full Powers
Rs. 500/- at a time
Full Power
Rs. 400/- per month
in each case (subject
to recommendation
of each case by
district Assessment
Committee)
Full Power
Rs. 400/- per month
each case
Full Power
Rs. 400/- per month
Rs. 10,000/Rs. 2,000/Rs. 12,000/-
Full Power
Full Power

S.
No
To Whom
Delegated
Nature of Powers
vi)
Hot and Cold Weather Charges
DCO
EDO
vii)
Purchase of Liveries, Typewriters,

Duplicators and bicycles.
DCO
EDO
viii)
Purchase of periodicals and

Newspapers.
DCO
EDO
ix)
Purchase of books and maps
DCO
EDO
x)
Law Charges
DCO
EDO
xi)
Compensation payable to any individual under law

rules or judgment of Courts
Other items:
(a) Non-recurring items.
DCO
EDO
DCO
EDO
xii)
(b) Recurring Items.

4.
Re-appropriation of Funds
DCO
EDO
5.
Powers to sanction and incur expenditure on

repairs replacement, overhauling, etc., to the light
machinery, mother vehicles and other tools and
plants subject to the restrictions already existing.
DCO
EDO
6.
Powers of Administrative Approval to works
DCO
7.
Powers to declare stores surplus
DCO
EDO
8.
Power to sell surplus or unserviceable stores by

auction.
DCO
EDO
9.
To write off losses on account of negligence and

fraud
DCO
28
Extent
After Devolution
each case
Full Power
Rs. 400/- per month
each case
Full Power
Rs.
4,000/per
month each case
Full Power
Rs. 500/- per month
each case
Full Power
Rs.
1,000/per
month each case
Full Power
Rs. 2,000/- p.m. each
case
Full Power
Rs. 5,000/- at a time
Full Power
Full Power
Full Power
(intra sectoral only)
Full Power
Up to Rs. 5 million.
Full Power with prior
consent of concerned
provincial Secretary
and
Finance
Department
and
Finance
Department
Full power with prior
and
Finance
Department. Report
Before
Devolution
Full Power
Full Power
Full Power
Full Power
Rs. 2,000/-
Rs. 5,000/Rs. 2,000/-
Rs. 500/Nil
Full Power
Rs. 25,000/or 25% of
bank value
of
the
machinery
which ever
is less.
Rs. 50,000/-
Rs.
0.1
Million
Case of Pakistan
S.
No
To Whom
Delegated
Nature of Powers
10.
To write off losses other than those due to

negligence and fraud
DCO
11.
Approval of new development schemes
DCO
Extent
After Devolution
Before
Devolution
also to be sent to
A.G.
Provincial Secretary
and Finance Deptt
Upto Rs.5 million
after approval by
DDWG
Source: Decentralization Unit, MOE, Islamabad
III.5. Flexibility within Existing Budgets

This includes, for example, reallocation within education, i.e. transferring
posts. The new system is being developed to become flexible in a phased
manner, as per capacity building of the district-based officers.
It transpires from the foregoing that the:
District Coordination Officer (DCO) through a consultative process with
the districts officers allocates resources/ revenues for education activities
in the District. Usually, no evaluation is made to find links between
allocated resources and performance, shown by the school.
EDO Education has been given powers/ authority for incurring
expenditure, who runs the educational affairs of the district along with his
team comprising District Officers (DO) and assistant development officers
(ADO).
Head teacher is the Chairperson of school management committee and
makes all day to day decisions for smooth running of the school and its
satisfactory performance. Therefore it is the head teacher who decides
about affective utilization of revenue for efficient functioning of the
school.
SMC makes recommendations for provision and maintenance of physical/
instructional resources. Besides, PTA/ SMC also supervise the school, its
finances as well as academic activities.
After gaining some experience and having knowledge of promising
practices by more efficient and dynamic district teams in the country,
generation of funds can be expected by all districts.
Normally, the accountability of the school team is upward (from higher
officers i.e. ADO/ DO/ EDO- Edu/ EDO- Finance, DCO and PTA/ SMC
as well, who assist in academic audit of the institution.
An encouraging and bright aspect of new system is that the budgets after
approval by the District Assembly, are transparent, and made available to
29
PTAs / SMCs / Citizenry.

The decentralization of financial resource mobilization and management
has been welcomed but the financial powers authorized to different
functionaries are considered to be far below the actual needs required for
the smooth/ efficient functioning of the schools.
Capacity building programmes for different stakeholders at district level
have been initiated to provide professional development for
administrative, academic, financial managers in most of the districts and
at cluster/provincial level. National Construction Bureau (NRB),
Decentralization Support Programme (partly assisted by ADB) and some
international agencies like European Union, DFID, ESRA, CIDA etc are
supplementing GoP efforts in capacity building. National Commission on
Human Development (NCHD) and Academy of Educational Planning and
Management, MoE Islamabad under its GoodGEM Project are also
running capacity building programme for district and sub-district based
functionaries.
III.6. The Way the System Works Resources

Some understanding of the extent to which decentralization has improved
schoolbased governance and the quality of education can be found in the
evidence gathered in a recent policy implementation study carried out by the
Ministry of Education in collaboration with UNESCO. The study addresses
two key questions: firstly, the extent to which under fiscal devolution,
resources and decision-making authority to utilize these resources has been
devolved to school-based governance; and secondly the effectiveness of fiscal
devolution on Quality Education for All (EFA). This pilot study, carried out in
two selected districts of Punjab and Balochistan provinces, revealed the
following initial responses to fiscal devolution. (Case Study on Fiscal
Devolution in Education, 2003).
For the first time the districts are deciding how much to spend on education
vis--vis other public services for which they are responsible. In the education
sector, district governments now have the lead responsibility in deciding
where to locate new schools, and how to finance their construction, in
addition to inspecting schools to ensure that they comply with standards and
in carrying out the annual evaluation of teachers and head teachers. The EDOEducation is a new position at the district level with responsibility for the
entire education sector as opposed to a particular branch within the sector.
He/she is required to make decisions on the allocation of resources across
branches and levels of education (Memon et al. July, 2002).
30
Case of Pakistan
At the request of the Ministry of Education-GoP, Multi-donor Support Unit
(MSU), need-based technical assistance was offered to the provinces in
articulating their reorganized education structures in the context of the
devolution plan and its objectives. A series of meetings provided orientation
for educational planners and managers from all over the country as well as an
arena in which meaningful suggestions could be made to refine the devolution
plan in education and to make it more responsive to local demands,
particularly in the following areas:
Development of Framework for District Based Planning, Management

Supervision and Monitoring in Education Sector
Governance
Community Mobilization and Participation
On the utilization of the block grant received by the districts, the procedure
followed is that the EDO education makes proposals and identifies schemes
which are submitted to the EDO Finance, who makes the budget by
prioritizing schemes and sends it to the district assembly or the DDC which
debates on the budget and approves it. At the school level, priorities are
determined by the Head Teacher in consultation with other teachers. The
Head Teachers are normally following the old hierarchal channel and submits
his/her requirements to the DoE, which helps the DoE to indicate and pursue
these schemes into annual development budget and get the approval of the
district assembly. It appears that meetings of district coordinating council are
conducted on regular basis.
Since devolution, the District Coordinating Council is responsible for the
nomination of the teachers. The DCC is headed by the Nazim and the DCO is
the chairperson of the selection committee while EDO-E is a member of the
committee.
In most cases, the new structure of the education department has not been
shared with the schools. Therefore, primary and middle schools are not aware
of EDO-Es role especially in fiscal matters. The schools are mostly concerned
with the DDEO who releases salaries to the schools. He also allocates
contingency grants according to school demand.
The SMCs/PTAs have been constituted in almost all levels of educational
institutions in the country. At the elementary level, this consists of a
Chairperson (Head Teacher/Head Master), one Secretary (One Senior
Teacher/Second HT), one Co-signatory (parent), three Members (Parents) the
Numberdar in rural area (a Councillor in urban area) and a Social worker
31

Retired Army Officers.
The EDO-E is perceived as a disbursing authority as SMC grants are issued
with his signature and he can out-rule the DDEO for example on blocking
salaries. He can recommend allocations for grants to schools, prioritizes
allocations and in general has an advisory role vis--vis the DDEO.
The Study also reveals that there is some change in the flow of funds which
are now also being provided for provision of furniture and other physical
inputs. Recognition of the importance of learning materials is evident at the
level of middle schools and is the result of specific projects.
The school account is jointly operated by the Chairman and a co-signatory;
however, the role of the latter is limited to signing the joint account after its
approval by the SMC. For primary and middle schools, the SMC is the
approving authority for the school budget which is given by the province
annual budget for learning and maintenance. It can also purchase materials in
collaboration with the Head Teacher (chairperson), supervise development
work and check the stock register - almost like an internal audit.
According to the rules, the budget is made by the Head Teacher and presented
to the SMC for approval. The role and responsibilities of SMC include
increasing student enrolment, checking teacher attendance, operating school
fund, generating local resources, monitoring progress and participating in
monthly meetings. The Chairperson and co-signatory also sign vouchers of
purchase and maintain the stock register. An annual audit is carried out by the
provincial government. In reality, the school management committees have no
functional role except for some involvement in school finance. The SMCs are
not clear of their roles and responsibilities. In some districts, training has been
arranged for members of SMCs/ PTAs. The SMCs role is more evident in
primary schools, and 50% schools report active participation by the
community. The SMCs have powers at all school levels regarding utilization
of funds. Participation of SMCs has declined because of discouragement, lack
of flexibility in utilizations and in determining school needs. Even for the
Farogh-e-taleem fund the school councils have to follow the criteria laid
down.
Some sound and meaningful system of accountability is to be evolved. There
is a lot of space to work in these fields so that the learning achievements of
the students may be measured in a systematic and scientific way. Some more
indicators are also required to be included/ developed for reliable
accountability, on the basis of which the teachers, head teachers and their
32
Case of Pakistan
supervisory team may be rewarded.
With the formation of PTAs/ SMCs, some foundation for accountability,
(although not very strong) has been laid down, which is expected to grow/
gain power with the passage of time. Citizens Community Boards (CCBs) are
being constituted to play their efficient role for fuller utilization of the
opportunities and in improving accountability PTAs/ SMCs hold their
meetings regularly and make some recommendations for improvement of the
school efficiency or for rehabilitation of missing facilities are not
implemented due to many reasons, mainly due to non availability of funds.
One can safely expect that the capacity building programmes for district
levels administrative/ academic/ financial managers, launched by NRB,
NCHD, AEPAM would have certainly developed, become fruitful, but it
would be too early to assess the effectiveness of these programmes, owing to
two reasons: firstly, due to short span of time and secondly, because the
indicators/ system for assessment are not in place.
Quality EFA is the secondary issue, which comes after resolving the access/
UPE issue. The priority matter in the urban slums and rural parts of each
districts is the UPE or 100% enrolment of all children of the primary school
age group (5 > 10 years). The quality issue is basically the concern of upper
income group population. The positive and important norm of quality
education can become important when a district achieves significant level of
gross enrolment rate (GER) and/ net enrolment rate (NER).
The marginalized/ un-reached groups of population also deserved particular
attention, majority of whom are still dreaming to be inside the school and get
at least basic education. However, sufficient funds (ranging from Rs. 150 to
200 millions per year) are being allocated at the national level, which is
transferred to all the four provinces, and four federating units for opening of
non formal basic education schools.
33
IV. Lessons Learnt and Road Map for Sustaining

Ongoing Reforms
IV.1. Decentralization Unit-MoE
As a follow up of Dakar Conference April 2000, the PNE Wing of the
Ministry of Education was renamed as EFA Wing. In order to achieve EFA
goals and strategies, EFA Unit and Decentralization Unit were established in
the MoE at federal level. The focal person on Decentralization, and Technical
Advisor-MoE held consultative meetings with the concerned officers in NRB
and MSU which were followed by visits to Provincial education departments
and one district in each province with the twin objectives of verifying needs
of district level for capacity building and brain-storming on the design of
capacity with a system oriented approach on the basis of existing initiatives in
education. Accordingly, after consultation with the district and provincial
governments, following capacity building needs of the district level
stakeholders were identified in key areas (Capacity building would appear to
be a catch-all) :
a. Sensitization:
Job description i.e. functions/responsibilities of officers/functionaries
at district and sub-district levels is not clear, which needs to be made
clear.
The communities as well, have to be provided proper orientation as to
how they can play their role in enhancement of education levels and
standards.
b. Administrative Skills:
Skills to carry out the assigned functions need to be imparted.
Skills for mobilizing all stakeholders, particularly local communities
in education planning.
Negotiation skills with political and bureaucratic functionaries at
various levels (district, provincial, federal).
c. Academic Skills:
DEOs/Deputy DEOs may be assigned academic audit of schools after
imparting necessary skills/training for it.
In-service Teacher training to be strengthened at district and subdistrict level for both government and private sectors. Currently
training is centralized to provincial level.
The envisaged National Education Assessment System (NEAS) can
34
Case of Pakistan
be successful only if proper training and local support is arranged.

Programming skills in functional literacy; introducing ECE;
Technical Stream at secondary level be arranged.
d. Planning & Financial Issues:

Planning for district based education plans, monitoring and
evaluation, and school based budgeting.
Teachers need skills of dealing with audit and the funds-utilization
procedure.
Head teacher (BS-16) of all Middle Schools be
empowered as Drawing Disbursing Officer.
However, they need
appropriate skills to deal with financial matters.
Financial information/accounts should also be integrated with EMIS.
Online system should be introduced to make access to information,
monitoring and accountability easier.
Capacity building in undertaking Public Private Partnership (PPP)
innovations for education development for maximum collaboration
between Public Sector, Private Sector and NGOs.
Training in monitoring mechanisms for PRSP, EFA and ESR
e. Management Information System (MIS) Training:
EMIS needs strengthening at district level with direct accountability
to District Government (currently line manager at provincial level).
Existing EMIS system is weak. Provincial EMIS Office obtains data
from districts only once a year. The EMIS reporting system should be
set-up at district level well integrated with Provincial and national
EMIS, which may update the data on monthly basis and put it on their
web-site.
Feedback to policy makers through timely data collection and
analysis.
In short, Ministry of Education is making efforts to provide both financial and
technical support to provinces for capacity building opportunities. Academy
of Educational, Planning and Management under its project Good-GEM has
already undertaken capacity building of district based officers, utilizing the
aforesaid identified needs and more than a dozen capacity building workshops
have been organized not only at Islamabad but also in provincial headquarters
and areas/regions.
35

IV.2. Symposium on International Experience with Decentralisation
and Education
The World Bank, in collaboration with the Federal Ministry of Education,
held a two-day symposium in Quetta, Pakistan, on June 8 and 9, 2001. The
purpose of the symposium was to bring to Pakistan the findings of recently
completed research on education decentralization (from various countries) and
to discuss these in the light of Pakistan's devolution and decentralization
plans. The symposium addressed four topics:
the division of responsibilities among the levels of government that would

best serve to improve the effectiveness of the education system;
the challenges and strategies for the implementation of education reforms
in an increasingly decentralized system of government;
the role of public and private schools and of other public, private and
community organizations in a decentralized education system;
how decentralization can improve the effectiveness of schools and thus
have a positive effect on student learning outcomes?
The symposium was attended by more than one hundred people from all
corners of Pakistan, ranging from newly elected Nazims, district, provincial
and federal government officials, NGOs, private school operators, researchers
and the media.
The deliberations and discussions revealed that the devolution of political
power and the decentralization of administrative responsibilities to districts
and below is a brave initiative which presents Pakistan with a unique
opportunity to improve education outcomes access and learning. The full
benefits of decentralization to have an impact on instructional quality will
appear with the continued process of decentralization until it reaches to the
school itself and to the community.
IV.3. Case Study on Fiscal Decentralization in Education
MoE and UNESCO-Paris Primary Education Section on Educational
Governance commissioned a case study on Fiscal Decentralization in
Education at District levels, enabling School-Based Governance was
commissioned in late 2002. A national level Advisory/Steering Committee for
the sake of participation quality, transparency and guidance was constituted.
The selected consulting firm carried out the study. Main findings of the study
and problems/challenges identified may be stated as under:36
Case of Pakistan
The delegation of resources and decision making for use of the resources
has been made to the district but not to lower levels. All financial powers
at the district level have been given to the principal accounting officer i.e.
the District Coordinating Officer (DCO) - a new post created under
devolution.
There is some improvement in the accountability of government
functionaries with all expenditures questioned in District Council
meetings. And, frequent monitoring and inspection by civil and military
functionaries has to some extent, increased teacher attendance.
More involvement of citizens in planning, decision making and
monitoring through their elected representatives at the three tiers of local
government is opening up the system which before devolution was
considered to be the sole purview of the education government.
Problems are arising from unclear delegation of financial powers and
rules of business between the province and the district as well as among
different functionaries at the district level.
The lack of coordination between implementation of federal ESR
programme, and budget sources available at district and provincial levels.
There is hardly any room for the districts to prioritize as the bulk of the
budget is already earmarked for salaries
With decentralization, decision-making authority, both administrative and
financial, divided between the province and the district and at the district
level, between the DCO and the EDO Education, the latter is now
responsible for making district education plans but with less financial
authority as compared to the previous DEO who was primarily an
implementing authority.
The sharing of power between the administrative and elected
representatives has been regarded as another challenge. The increase in
the number of functionaries at the district level has increased political
interference in appointments, postings and transfers.
Some formula or procedure needs to be developed to ensure that the more
underdeveloped districts are able to access greater financial resources.
Specific policies for addressing patriarchal structures hindering progress
in women literacy and girls education also need to be formulated.
Issues between the Provinces and the districts require attention.
Capacity building at all levels and of all appointed or elected
representatives is essential for the success of devolution, which in general
is looked at positively by most people at the district level. However,
people lack confidence, knowledge and expertise. School Management
Committees (SMCs) need to be provided legal cover and more financial
37
authorities.
Fiscal challenges: At district level, governments acquire greater authority,
they will be in a position to access resources not only from the Federal/
Provincial government but from international donors and development
partners. To achieve EFA goals, extra resources will also be needed for
district with low literacy, poor primary enrolment and high gender
disparities. Monitoring guidelines should be developed for district
government to enable them to allocate resources keeping in view
principles of equity and constraints at sub district level.
The authority of the Head Teacher needs to be enhanced with increased
flexibility in utilizing the school grant. Grants to primary schools
The weakest link in the fiscal chain is the Citizen Community Board,
which while qualifying for receiving ADP funds for undertaking
development work is unable to come up with 20% matching funds to
qualify for registration and funds allocation.
The School Management Committee (SMC) is facility based but lacks
legal cover and enhanced financial authority including authority for
school construction and repairs. Membership of SMCs representing
school clusters on CCBs and capacity building of both levels of
organizations should enable quality enforcement in EFA.
IV.4. The Way Forward
The most important is to conduct an impact evaluation study to assess the

effectiveness and productivity of devolution plan. For the purpose true
representative sample approach covering all districts of the country should
be adopted.
The study should cover all the different aspects of new system i.e.
administrative, academic and financial.
Based on the finding of impact evaluation study result, constraints and

bottlenecks should be removed to make the decentralized system effective
and efficient.
38
Case of Pakistan
References
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
Academy of Educational Planning and Management, NEMIS-Pakistan School Education

Statistics 2002-03 and 2003-2004.
Census of Population 1998, Government of Pakistan.
Devolution and Decentralization: Identification of Progress in Implementation in Education,
MSU, January 2002.
Donald Winkler and Randy Hatfield, The Devolution of Education in Pakistan, in Research
and Policy Dialogues on Key Issues in Education: Decentralization. IED, July 2002,
Islamabad.
Draft PRSP (Summarized Version) for discussion only, PRSP Secretariat, Ministry of Finance,
Government of Pakistan, May 2003.
Education Decentralization, Government of NWFP, Schools & Literacy Department,
Presentation during IED-AKU Policy Dialogue, July 2002 Islamabad.
Education Sector Reforms Action Plan 2001-2004, Government of Pakistan, Ministry of
Education. December 2001.
Faryal Khan Community Participation in School Management in Developing Countries: Who
participates and how?
Jamil, B.R. Decentralization and Devolution: Educational Implications of the Praetorian
Interpretation 2002.
Memon et al. Decentralization of the Education System in Sindh; A Critical Review in
Research and Policy Dialogues on Key Issues in Education: Decentralization. IED-AKU, July
2002, Islamabad.
Qureshi, T. M. Decentralization in Education in Pakistan & Capacity Building April, 2004
MoE Islamabad.
UNESCO 2004, EFA Global Monitoring Report 2005, Paris.
Website of Decentralization Support Programme, GoP.
Website of Government of Pakistan.
Zafar, Fareeha Fiscal Devolution in Education-Case Study Reflecting Initial Responses,
Government of Pakistan, Ministry of Education and UNESCO, Islamabad July, 2003.
39
Annexes
40
Case of Pakistan
Annex 1: Report Guidelines

1. Country background
(a)
Brief synopsis of education system: structure, institutional
organization and management; any recent or ongoing reforms;
arrangements for providing learning opportunities for youth and
adults.
(b)
Nature of decentralization broad strokes including political,
economic and social context.
(c)
The EFA challenge: current educational statistics pertinent to EFA
goals and progress achieved.
(d)
EFA plans: vision and modalities; how existing governance structures
have helped to accelerate the pace and quality of EFA
implementation.
(e)
Reliance on external funds: percentage of education
budget/expenditure; amounts, sources, types, use; recurrent versus
development expenditure.
2. Teachers
(a) Description of responsibilities and authority levels:
(i) Who determines the qualifications for education personnel?
(ii) Who actually hires and fires?
(iii) Who can transfer teachers?
(iv) Who sets the pay scale?
(v) Who determines increases and promotions?
(b) The way the system works:
(i) Who is accountable (and to whom) and what is the system of
accountability? What is measured? Has accountability increased to
beneficiaries/local groups? Is there wider participation beyond
government?
(ii) How is information gathered and used for the purposes of
accountability?
(iii) Capacities and professional development how developed
effective?
(iv) Effectiveness and efficiency of system in delivering quality EFA:
1. Is the quality of education improving?
2. Have targets been met? Are they likely to be? Why/why not?
3. Are differentiated needs being met?
4. Are the marginalized being reached?
5. What about non-formal education? Private education? What
arrangements concerning teacher deployment and management?
41

3. Resources
(a) Description of responsibilities and authority levels in answer to
questions resources:
(i) Who decides about sources of funds?
(ii) Who decides how much revenue?
(iii) Who decides the allocation or budgeting of revenue?
(iv) Who decides about actual spending?
(b) The way the system works:
(i) Who is accountable and what is the system of accountability? What
is measured? Has accountability increased to beneficiaries/local
groups? Is there wider participation beyond government?
(ii) How is information gathered and used for the purposes of
accountability?
(iii) Capacities and professional development how developed
effective?
(iv) Effectiveness and efficiency of system in delivering quality EFA:
1. Has resource allocation changed as a result of decentralization?
How has this impacted EFA goals?
2. Is the quality of education improving?
3. Have targets been met? Are they likely to be? Why/why not?
4. Are differentiated needs being met?
5. Are the marginalized being reached?
6. What about non-formal education? Private education? What
arrangements concerning resource allocation and management?
(v) What effect has extrabudgetary finance had on EFA
implementation? How is it directed and utilized? Is its implementation
different from the prevailing system, for instance, its use for recurrent
or development expenditure, its control, monitoring and evaluation?
(vi) Have communities or the private sector been encouraged to
mobilize financial resources? What are the arrangements and have these
worked to further effective EFA implementation?
4. Analysis of successes and pitfalls
(i) What differences has the decentralized system teacher deployment
and management and resource mobilization and management made to
EFA implementation?
(ii) Has there been increased local accountability/ participation?
(iii) What has worked? What has not worked? Why?
(iv) Specifically, have teacher recruitment, deployment, training and
performance monitoring practices significantly contributed to:
1. Greater teacher motivation
42
Case of Pakistan
2. Enhanced professional competence
3. Enriched working environment
4. Better school-community interaction
(v) Specifically, has the timeliness and adequacy of fund flow improved
and has this made a difference to the quality of service delivery at the
school level?
5. Lessons
Following the critical analysis above of why the system works in the way
described whether effectively or ineffectively it is important to consider
how the reforms in teacher deployment and resource mobilization and
management were initiated, internalized and sustained. It would be
particularly helpful if the reports focused on how the effectiveness of the
system is being measured, what capacity building has been or is still required,
how needs have been identified for improving the system (of teacher and
financial deployment and management), and whether the attempts to address
those needs have been sufficient and/or appropriate. This will enable the focus
to be on the final two issues below:
(a) Lessons learned;
(b) Road map for sustaining ongoing reforms.
43
Annex 2: The Programme of the Seminar

UNESCO Seminar on EFA Implementation: Teacher and Resource
Management in the Context of Decentralization
68 January 2005
6 JANUARY 2005
8:00
9:00
9:10
9:30
9:50
10:00
11:00
12:00
1:00
2:00
3:30
4:00
5:00
6:00
6:30
8:00
Registration of Participants
Welcome Remarks by Dr S. K. Rao, Principal, ASCI
Theme Setting by Dr Mir Asghar Husain, Director, ED/EPS, UNESCO, Paris
Inaugural Address by Dr Y. S. Rajasekhara Reddy, Chief Minister of Andhra Pradesh
Vote of Thanks by Dr Abby Riddell, Senior Programme Specialist, ED/EPS,
UNESCO, Paris
UNESCO High Tea
Synthesis Paper Presentation on Ten Countries: Dr R. Govinda, National Institute for
Educational Planning and Administration (NIEPA)
Plenary Questions to NIEPA and Country Representatives
Lunch
Working Groups on Identified Problem Areas: Designation and Discussion/ Sharing of
National Experiences
Tea
Panel Presentations by two Indian States: Andhra Pradesh and Uttar Pradesh on
Teacher Deployment and Resource Management at State Level; Comments by
National Participants: India, China, Brazil and Pakistan
Plenary Discussion on Issues Raised in Panel Presentations
Close
Cocktails by ASCI at ASCI campus, Bella Vista, Khairtabad, Hyderabad
Andhra Pradesh State Reception at Jubilee Hall, Nampally, Hyderabad
7 JANUARY 2005
9:00
10:30
11:00
12:30
1:30
3:30
5:00
8:00
Report Presentation and Plenary Discussion on Populations in Tribal Areas: Dr I. V.

Subba Rao, Principal Secretary, Andhra Pradesh
Coffee
Report Presentation and Plenary Discussion on Women from Poorer Sections of Indian
Society:
by Mr Zahid Ali Khan, Siasat
Lunch
Tasks for afternoon explained; three Working Groups on (1) Teacher Deployment and
Management; (2) Resource Management; and (3) Capacity Building Lessons (Tea
served during working group sessions)
Report back from Working Groups
Close
Siasat Reception at Taramati Baradari, Golconda Fort, Hyderabad
44
Case of Pakistan
8 JANUARY 2005
9:00
11:00
11:45
12:15
1:15
Moving Beyond the Issues to the Problem Areas Requiring Attention: Identification
of Potential Assistance? Plenary followed by Working Groups
Report back: The Way Forward
High Tea
Valedictory Addresses:
Dr S. K. Rao, Principal, ASCI
Dr Mir Asghar Husain, Director, ED/EPS, UNESCO, Paris
Mr K. M. Acharya, Joint Secretary, Ministry of Human Resource Development,
Government of India
Dr Mohan Kanda, Chief Secretary, Government of Andhra Pradesh, India
Vote of Thanks, Mrs Leticia Aguirre, Ministry of Public Education, Mexico
Lunch
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ED/EPS/2006/RP/12e

Country Report at the UNESCO Seminar on

Administrative Staff College of India, Hyderabad, India,

Education policies and strategies

Administrative Staff College of India

Published in 2006 by:

Decentralization of Education in Pakistan .........................................9

Annual Development Programme

Punjab Local Government Ordinance

Teacher and Resource Management in the Context of Decentralization

decisions are reached on the allocation of human and financial resources

Common issues raised

weak fiscal decentralization;

compensatory role of central government;

rationalization of allocation and deployment of teachers;

Teacher and Resource Management in the Context of Decentralization

Weak fiscal decentralization

Teacher and Resource Management in the Context of Decentralization

Institute for Educational Planning and Administration, I. Subba Rao, Principal

Decentralization of Education in Pakistan

Teacher and Resource Management in the Context of Decentralization

As Figure I illustrates the Local Government Plan 2000 for devolution

Teacher and Resource Management in the Context of Decentralization

Detailed data on number of educational institutions, student enrolment and

Teacher and Resource Management in the Context of Decentralization

Adult Literacy rate 15+ (%) 2000-04

Source: EFA Global Monitoring Report 2005 UNESCO, Paris.

I.2. Decentralization of Education in Pakistan

Teacher and Resource Management in the Context of Decentralization

II. Teacher Deployment and Management

Teacher and Resource Management in the Context of Decentralization

Preparation and launching of National Plan of Action on Education for

These initiatives have helped in launching EFA programmes as a movement

Opening of 3,460 face-to-face literacy centres and 200 TV literacy centres

Implementation through NGOs and community with strong motivational

b. Quranic Literacy Project 1992-94

Timetable arrangement sometimes kept some of the literacy teachers busy

Teacher and Resource Management in the Context of Decentralization

Preference has been given to the establishment of schools for females.

Teacher and Resource Management in the Context of Decentralization

Federal Areas Programme:

Punjab Literacy Pilot Project:

The Punjab programme was successful in terms of enrolment. A target of

Teacher and Resource Management in the Context of Decentralization

III. Resources for Education

Additional Budgetary Support for the Provinces in PSDP / ADP

To some extent, these alternatives were previously available to provinces;

III.1. Fiscal Transfers

Teacher and Resource Management in the Context of Decentralization

DCO is the principle accounting officer of the district.

SMC monitors school finance.

The comprehensive comparative statement of delegation of financial powers,

Addition to or repairs of instruments and furniture

Expenditure on rent of non- residential buildings

Freight for movement of Government properly.

Electricity and water charges and taxes.

Rs. 10,000/Rs. 2,000/Rs. 12,000/-

Teacher and Resource Management in the Context of Decentralization

Hot and Cold Weather Charges

Purchase of Liveries, Typewriters,

Purchase of periodicals and

Purchase of books and maps

Compensation payable to any individual under law

(b) Recurring Items.