2015年-世界发展银行全球_Madagascar_Public_Expenditure_Review_2015___Education_78页_2mb

Summary of the Madagascar Public Expenditure Review 2015: Education

Core Content Overview

This document presents a comprehensive review of the education sector in Madagascar, focusing on public expenditure, its efficiency, and distributional impacts from 2000 to 2014. It outlines the structure of the education system, recent trends in education outputs and inputs, the role of community teachers (FRAM), and the implications of these trends for policy and planning.

Main Points and Key Findings

A.1 Organization of Public Education

• The education system in Madagascar is structured into five levels: preschool, primary (5 years), lower secondary (4 years), upper secondary (3 years), and higher education.
• Management is centralized, with the Ministry of Education (MEN) overseeing the system through 22 regional directions, 114 school districts (CISCOs), and 1,591 subdistricts (ZAPs).
• The system has a school-based management framework with FAFs (school management committees) composed of parents, teachers, school directors, and local community representatives. These committees play a crucial role in managing school grants and promoting community engagement.
• The sector has faced significant challenges due to the political and economic crisis, including lack of strategic leadership and implementation of reforms.

A.2 Recent Trends in Education Outputs and Outcomes

• Primary enrollment has grown slowly since 2009, despite earlier rapid increases (e.g., 2001–2003). The gross enrollment rate (GER) dropped from 157% in 2008/09 to 144% in 2013/14, reflecting a decline in attendance and completion.
• The primary completion rate has also decreased, from 73% to 71% since 2009, lagging behind Sub-Saharan Africa (SSA) and low-income countries.
• Learning outcomes have worsened, with PASEC data showing a significant decline in French and mathematics scores from 1998 to 2012.
• Attendance rates for children aged 6–10 years dropped from 79.6% in 2005 to 72.9% in 2012, while for 11–14 years, it fell from 73.8% to 65.9%.
• Dropout rates are high, especially for children under 10, with 5% dropping out around age 9 and 43% by age 15.

A.3 Recent Trends in the Distribution of Inputs

• Learning materials are scarce, with only 55% of schools having one French textbook per two students, 58% in mathematics, and 71% in Malagasy.
• Instructional time is often reduced due to issues like non-adherence to the school calendar, natural disasters, and meetings.
• Classroom availability has increased but remains uneven. The pupil-classroom ratio rose from 47:1 in 2011 to 53:1 in 2013/14, with significant regional disparities.
• Teacher distribution is also uneven. The pupil-teacher ratio decreased from 55:1 in 2000 to 44:1 in 2014, but regional disparities remain. For instance, the highest ratios were found in southern regions like Anosy (61:1) and Androy (63:1), while lower ratios were observed in Analamanga and Alaotra-Mangoro.

A.4 Reliance on Community Teachers (FRAM)

• Community teachers (FRAM) now constitute 80% of the total teaching force, up from 51% in 2006.
• Civil servant teachers have declined significantly, from 47% in 2006 to 16% in 2013/14.
• The reliance on FRAM teachers has enabled the expansion of the education system and financial sustainability.
• Subsidized FRAM teachers have seen an increase in remuneration, from 30,000 MGA per month in 2002 to 110,000 MGA per month in 2013.
• The system of community teachers has been supported by the Ministry of Education, with some efforts to formalize their status and improve their integration into the public education system.

Key Policy Implications

• Strengthening strategic leadership and continuity in education management is essential to sustain progress and long-term vision.
• Program-based budgeting has not been fully implemented, leading to resource-based budgeting and inefficiencies in expenditure.
• There is a need to improve teacher training and recruitment, especially for civil servant teachers, to ensure quality education.
• Enhancing infrastructure development, particularly in rural and southern regions, is crucial to reduce pupil-classroom ratios and improve access.
• Community involvement in education management should be further institutionalized to ensure accountability and effective resource utilization.
• Targeted support for vulnerable groups, especially in rural areas and for boys, is necessary to address enrollment and attendance disparities.
• The integration of community teachers into the formal system and ensuring their financial sustainability through subsidies and remuneration policies is a priority.

Efficiency and Allocation Analysis

• The technical efficiency of education expenditure is assessed through input shares (e.g., salaries, materials, infrastructure), revealing significant inefficiencies.
• Allocative efficiency is analyzed by expenditure function, showing that resource allocation is not aligned with educational needs and outcomes.
• Unit costs for primary education are higher than in other parts of Sub-Saharan Africa, indicating possible inefficiencies in spending.
• Government subsidies to education have been unevenly distributed, with a strong correlation between expenditure levels and poverty rates.
• Gender inequality persists in education, with lower attendance and higher dropout rates among boys, especially in rural areas.
• The impact of direct household education expenditures on regional and income inequalities is significant, particularly in the southern regions where such costs are higher.

Conclusion

The education sector in Madagascar has undergone significant changes in structure and funding over the past decade. While community teachers have played a vital role in expanding access, the system still faces major challenges in terms of quality, equity, and efficiency. Addressing these issues requires a comprehensive approach involving improved governance, strategic planning, and resource allocation. The document highlights the need for policy reforms to ensure sustainable and equitable education delivery.