What are the key issues in the development and implementation of sector wide approaches (SWAps) in education? This desk study by the Institute for Health Sector Development (IHSD) provides an overview of experience of education SWAps in Rwanda, Uganda and Zambia to address this question and make recommendations as to how strategy development can be improved.
SWAps are a process with different stages of development and should not be considered a blueprint. Zambia, Uganda, and Rwanda represent different examples of three broad steps in the development of an education SWAp: ‘sub-sector’ (Zambia), ‘flexible’ (Rwanda), and ‘full’ (Uganda). Sub-sector initiatives attempt to harmonise external assistance and may adopt common management arrangements, but do not have an integrated whole sector strategy. The flexible stage has a government-led whole sector strategy, but allows for a flexible mix of funding modalities, including project support. A full SWAP encompasses coherent sector strategy, government management and financing arrangements, and jointly agreed negotiating mechanisms. Key lessons emerging from the study are that:
- Government ownership and leadership of the process and capacity for programme management are vital for success.
- The extent to which gender issues are addressed in education SWAPs varies. There is often a lack of gender mainstreaming in sector planning, management, and institutional processes.
- In theory transaction costs should reduce in the move from fragmented project approaches to SWAps. In practice they increase in the early stages. This is due to capacity issues in developing common systems.
- Participation of NGOs, the private sector, and service users in participating in policy-formulation is patchy. Governments are unreceptive and reluctant to concede space in policy dialogue.
- Resources allocated to education have increased under SWAps, with a large proportion targeted to pro-poor policy. This has contributed to improvements in access and quality.
SWAps must not be perceived in isolation from wider governance reform issues because they will not succeed in the absence of political stability, wide government commitment and institutional capacity. Agreeing co-ordination, partnership and sector management issues takes time and is not easy. Other policy implications for funding agencies are:
- Continuity of key government and funding agency staff in the ongoing development of the SWAp is crucial in maintaining commitment and momentum.
- Policy gaps are inevitable. It is better to prioritise and sequence a set of realistic targets and expand to a full sector strategy in time.
- Effective co-ordination with the Ministry of Finance is vital in ensuring budgeting and disbursement reforms for the education sector.
- High priority must be given to the establishment of Education Management Information Systems.
- Good expenditure tracking and audit systems are essential in ensuring resources are used efficiently and help achieve sector priorities.
- Some funding agencies are unable or hesitant to use government financing mechanisms. Where these agencies are influential, progress towards integrating sector planning into the Medium Term Expenditure Framework will be limited and may undermine education reform.
