ACKGROUND AND EDUCATION SECTOR OVERVIEW · percent passing. Numeracy and mathematics results are weak in form four exams, in Grade 8 exams, in MLA 4 and in studies done on non-formal

Quality Assurance Review – Phase 3

SOMALILAND March 2018

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Proposed GPE Grant Amount: US$7.68 million Fixed Part: US$7.68 million, of which US$1,659,928 million for Grant Agent’s Implementation Support Costs; Variable Part: ex ante Implementation period: 3 years Projected implementation start date: July 1, 2018 Grant Agent: Save the Children US

1. BACKGROUND AND EDUCATION SECTOR OVERVIEW

1.1. COUNTRY BACKGROUND

Somaliland is situated in the north-west of Somalia, a low-income country with an estimated gross

domestic product (GDP) per capita of US$ 426.1 The Education Sector Analysis indicates that

Somaliland’s income per capita may be relatively higher.2 However, according to World Bank’s

Somali High Frequency Survey, poverty is pronounced in Somaliland. Every second Somalilander

was living in poverty in 2016 before the onset of the current drought.3 The population of Somaliland

is estimated at 3.5 million people (51.2 percent female), with an average population growth rate of

3.1 percent per annum.4

According to the 2017 Fragile States Index, which assesses the fragility of a country based on 12

social, economic and political indicators, Somalia ranks as the world’s second most fragile state

(right behind South Sudan).5 The civil war in Somalia had a devastating impact on the economy,

the physical infrastructure, and the lives of Somaliland’s population. Since its unilateral declaration

of independence in 1991, Somaliland has remained stable with functioning institutions and a

relatively peaceful transfer of power through democratic elections including in 2017. However,

there is a continuing border conflict with Puntland over the disputed regions of Sool and Sanaag,

and risk of infiltration of terrorist organizations through those regions.

Moreover, drought is becoming more frequent, allowing less time for recovery, and increasing the

vulnerability of local populations. The ability of agro-pastoralists to respond to droughts is limited

not only due to their increasing frequency, but also due to a dwindling resource base. This is

1 2015, World Bank DataBank World Development Indicators, http://databank.worldbank.org/data/reports.aspx?Code=NY.GDP.PCAP.CD&id=1ff4a498&report_name=Popular-Indicators&populartype=series&ispopular=y, consulted February 2018. 2 2016, Somaliland Education Sector Analysis, page 27. 3 2017, World Bank, Somalia Poverty Profile, page IX (reference to Somaliland as North West). 4 Somaliland Multiple Indicator Cluster Survey. 2011. 5 http://fundforpeace.org/fsi/data/, consulted in February 2018. Please note that Somalia isn’t included in the Human Development Index rating, due to incomplete data.

http://databank.worldbank.org/data/reports.aspx?Code=NY.GDP.PCAP.CD&id=1ff4a498&report_name=Popular-Indicators&populartype=series&ispopular=y

http://databank.worldbank.org/data/reports.aspx?Code=NY.GDP.PCAP.CD&id=1ff4a498&report_name=Popular-Indicators&populartype=series&ispopular=y

http://fundforpeace.org/fsi/data/



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caused by the diminishing livestock which is the backbone of the economy. The gradual erosion

of population resilience and traditional coping strategies by successive shocks has escalated the

impact of drought-related crises. The recent countrywide seasonal assessment conducted in

November and December 2017 indicates that more than 1.8 million people in Somaliland (52

percent of the population) will need humanitarian assistance in 2018, with approximately 820,000

facing acute food insecurity.6

Somaliland

Population

3.5 million (2011, Somaliland Multiple Indicator Cluster Survey)

Human Development Index Ranking

Somalia isn’t included in the 2016 Human Development Index rating, due to incomplete data.

GDP US$ 5,925,000,000 (Somalia)7

GDP per capita US$ 426 (Somalia)8

World Bank Income Classification Level

Low-Income Economies9

1.2. EDUCATION SECTOR OVERVIEW

1.2.1. Learning outcomes

According to the Grade 3 Early Grade Reading Assessment conducted by Save the Children

(2016) and the Africa Education Trust Measuring Learning Achievements (MLA) Report for Grade

7 (2014), reading results gradually strengthen throughout primary, but should be further reinforced

especially in early grades. Moreover, writing skills remain weak. Results in English parallel those

in Somali, although results are weaker in writing and paragraph comprehension. Math is the

weakest subject, with 34 percent of students having very weak numeracy skills and only 32

percent passing. Numeracy and mathematics results are weak in form four exams, in Grade 8

exams, in MLA 4 and in studies done on non-formal education.

6 Somalia, State-by-State Drought Analysis, February 2018. 7 2015, World Bank DataBank World Development Indicators, http://databank.worldbank.org/data/reports.aspx?Code=NY.GDP.PCAP.CD&id=1ff4a498&report_name=Popular-Indicators&populartype=series&ispopular=y, consulted February 2018 8 2015, World Bank DataBank World Development Indicators, http://databank.worldbank.org/data/reports.aspx?Code=NY.GDP.PCAP.CD&id=1ff4a498&report_name=Popular-Indicators&populartype=series&ispopular=y, consulted February 2018 9 2018, https://datahelpdesk.worldbank.org/knowledgebase/articles/906519



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The table below shows learning results from the Save the Children (2016) reading assessment

and the MLA report (2014).

2014 MLA Study 2016 SC Assessment

Score Range / Reading Level

Grade 7 Somali

Grade 7 Math Grade 7 English

Grade 3 Reading

0-9 4.0% 14.0% 2.5%

10-19 3.0% 20.0% 16.5%

20-29 33.4% 34.2% 21.7%

30-39 25.6% 16.9% 29.2%

40-50 34.0% 15.0% 30.1%

Zero Readers: 0 Words Per Minute 7.9%

Low Readers: 1-45 Words Per Minute 45.3%

Emergent Readers: 45-60 Words Per Minute 41.0%

Fluent Readers: >60 Words Per Minute 5.8%

1.2.2. Equity

According to the 2014-15 Statistical Yearbook, primary enrolment increased from 187,960 to 234,128 in four school years. Nevertheless, primary gross enrollment rate (GER) has stagnated at around 44 percent since 2012-2013. Primary net enrollment rate (NER) is equally flat at around 34 percent since 2012-2013. No figures on primary completion rates are available, but data indicate that they are very low since, in addition to low enrolment figures, survival rates to Grade 5 are estimated at 68.8 percent. Secondary GER increased from 10.6 percent in 2012-13 to 21.3 percent in 2014-15. No enrollment data on pre-primary are available. The Education Sector Analysis (ESA) indicates that most pre-primary aged children have access to Qur’anic education but only a small number have access to the wider pre-school curriculum represented by kindergarten. According to the 2014-15 Statistical Yearbook, the gender parity index in enrollment increased from 0.76 in 2011-2012 to 0.83 in 2014-15 in primary and from 0.52 to 0.88 in secondary education. Household data show even more pronounced variation in enrollment between urban and rural populations, with the internally displaced (IDPs) and pastoralist children (at an enrollment of 15.7 percent across Somalia) at the lowest levels. Enrollment figures are, according to the same household data, also different by household income (with enrollment estimated at 23.5 percent for the poorest quintile).

1.2.3. Efficiency

According to the 2014-15 Statistical Yearbook, the dropout rates per year are around 4 percent

with the highs in Grade 1 (11 percent) and Grade 7 (10.6 percent), while repetition rates are around

2 percent. Survival rates to Grade 5 are estimated at 68.8 percent. This said, there are only two

sets of data for these parameters, and figures are remarkably different from the previous year (drop

out at 10.8 percent, repetition at 3.7 percent, and survival rate at 85.6 percent). Finally, the

percentage of qualified primary school teachers is slightly below 40 percent according to the same

Statistical Yearbook.



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1.2.4. Monitoring of Sector Performance

Somaliland established a Local Education Group (LEG) called Education Sector Committee (ESC)

when it joined GPE. Monthly meetings are held in Hargeisa. In recent years, the Ministry of

Education and Science (MOES) has taken over responsibility from the ESC coordinator to organize

these monthly gatherings, as well as ad hoc meetings when necessary. In addition to the MOES,

the ESC includes UN agencies and international non-governmental organizations. Since 2016,

representatives of the newly created Somaliland civil society coalition SOLNEFA have been

participating. Due to the security situation, it remains difficult for certain international agencies to

always be present at the ESC meetings in Hargeisa. To compensate, a Nairobi based Education

Sector Committee reports on the ESC meetings in Hargeisa (and other regions of Somalia) and

assures donor coordination. Moreover, a joint education steering committee including Ministry

staff, donors and implementing partners reviews implementation of different programs biannually

in Hargeisa. This has reinforced collaboration between donors as well as between their grant

agents – who often work in consortium – which in turn has led to complementarity between

programs and integration of lessons learned through various programs, as shown in component 1

of the current proposal. The inclusion of this program in that joint education steering committee is

encouraged.

In addition to the organization of monthly local education group meetings, Somaliland has also

started in 2014 to organize annually a joint sector review with participation from local stakeholders

and most international agencies. The joint sector review looks at sector trends and achievements,

and serves as an important input to forward planning. While these meetings form a firm basis for

sector dialogue, the next steps would be to strengthen the implementation report, as well as the

monitoring of their recommendations.

2. FIXED PART REQUIREMENTS

2.1. Requirement 1: A credible, endorsed Education Sector Plan (ESP), or alternatively, a

Transitional Education Plan (TEP).

In 2016, the MOES, together with its partners, embarked on a process to develop a new Education

Sector Strategic Plan (ESSP 2017-2021). As in 2012, the Ministry decided to develop a “full-sector

plan” to integrate all sub-sectors in one planning document, even if the government’s limited

financial and human resources would continue to be mainly directed towards basic and secondary

education.

The draft plan was submitted twice to an external consultant for appraisal. After a negative

appraisal report in May 2017, the Ministry and its partners revised thoroughly the draft ESSP to



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better develop strategies across subsectors, and strengthen its action plan, results framework and

monitoring framework. This exercise also enhanced government ownership of the ESSP, which

was lacking originally.

A new appraisal done in September 2017 concluded that the 2017-2021 ESSP and its 2017-2021

Action Plan had sufficiently fulfilled all the requirements of a credible plan; though the appraisal

made some additional recommendations with regards to the Action Plan and Results Framework.

After another round of revisions, the ESSP 2017-2021 and its Action Plan (i) outline clearly the

sector’s policy priorities (overall vision), (ii) identify underlying causes for the sector’s key

challenges in equity, efficiency and learning outcomes and more importantly addressed through

relevant strategies and actions (strategic), (iii) cover all education subsectors (exhaustive), (iv) are

based on the best available data (the 2016 ESA in particular), (v) are based on a simulation model

with assumptions confirmed by the Ministry of Finance, and accompanied by results framework to

support its implementation (achievability), (vi) identify the main implementation-related risks and

proposes mitigation measures (sensitive to context), and (vii) take disparities into account

(geographic, gender, and disabled children in school). The new ESSP also includes specific

strategies dealing with emergencies to strengthen the resilience of the system.

The ESSP was finalized in October 2017, and was subsequently endorsed by the Local Education

Group in Hargeisa as well as the development partner group, including main donors, in Nairobi.

The new Government of Somaliland has confirmed its commitment to the implementation of the

ESSP, and its domestic funding scenario.

Conclusion: Somaliland fulfills the first requirement on the availability of a credible ESP.

2.2. Requirement 2: Evidence of commitment to ESP or TEP and its financing.

In recent years, Somaliland’s government was able to increase substantially its national budget,

which resulted in more than doubling the education sector’s allocation from US$ 7.8 million in

2012 to US$ 15.9 million in 2017. Nevertheless, the increased education budget did not lead to

an increase in the share of education in the national budget; which remained at around 7 percent.

This put Somaliland, regardless of progress made, at odds with the GPE funding model

requirement. Reinforced by GPC’s recommendation, the Secretariat discussed this issue with the

new Minister of Education and Science and with the new Vice-Minister of Finance & Development.

Both indicated that the newly elected President had, in line with his campaign promises, instructed

the Finance Ministry to substantially increase the education budget. In this positive climate, the

MOES used both the GPE funding model requirement and the new ESSP – which includes a

growth path of the share of education of 1 percent per year – to obtain the promise from the

Ministry of Finance for a growth path towards 13 percent by 2020. This commitment was

confirmed in writing by the Minister of Finance, indicating that the share of education in the 2018

Finance Law has increased to 9 percent.



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Moreover, traditionally Somaliland has a good track record in implementing its national budget,

specifically that of the education sector. This said, the drought in 2017 led to a decision to reverse

all budget increases to different sectors to address the famine. If the crisis persists, there may be

continued pressure on the government to prioritize drought-related spending above all other

expenditures, including increases to education.

Up to 70 percent of the domestic financing for education is spent on the eight-year primary cycle.

This figure is largely driven by the teachers’ salary payment, which is by far the main component

in the budget of the Ministry of Education. This is not surprising considering enrollment figures

which indicate 4 times more primary than secondary pupils. Calculations based on the number of

students per sub-cycle put the budget share for the six-year primary cycle at 65 percent. This

means that Somaliland is above the 45 percent baseline.

Conclusion: The Secretariat assesses the share of education as modest but

understandable; and the growth path as ambitious, given the fragility. On that basis, it

concluded that Somaliland fulfills the requirement for its commitment to gradually

increase the share of domestic financing to education, and the share of the primary sub-

sector in the education sector budget.

2.3. Requirement 3: Availability of Data.

For the preparation of ESSP 2017-2021, an extensive education sector analysis (ESA) was done

in 2016, broadly covering the different core issues indicated in the GPE Education Sector Plan

Preparation Guidelines to the extent data was available. In addition, the ESA specifically

addresses resilience including impact of disasters.

The last data published by UIS date from 2007, because UIS only accepts data at the level of

Somalia, which cannot be provided since not all regions have functioning EMIS, from which

national data could be aggregated. For Somaliland, the 2014-15 Statistical Yearbook provides

figures for the education proxy indicators, except for the pre-primary gross enrollment and

completion rates. Some equivalent indicators, including transition rate to grade 5 partially

compensate for the lack of formal completion rates. With regards to the financial information, the

government provided data on two proxy indicators – public expenditure on education as a percent

of public expenditure and educational expenditure in primary as a percent of total educational

expenditure through the requirement matrix. However, no Statistical Yearbook was completed for

the 2015-16 school year and no census was done during the 2016-17 school year. The ESSP

envisages to reinstall EMIS and strengthen it to cover early childhood education (ECE). The

ESPIG will be providing support and financing for EMIS.

With regards to monitoring learning outcomes, the MOES organizes examinations for Grade 8

(end of primary) and Form 4 (end of secondary) students, providing qualifications to all passing

pupils. The Somaliland National Examinations Council (SNEC), established in 2011, is

responsible for the national examinations system. According to the ESA, the overall design of the

examination system is sound and fit-for-purpose. However, there are numerous challenges with



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regards to the accountability and sustainability of the examination system, as well as uncertainties

about its ability to cater to the needs of the marginalized communities. The ESSP 2017-2021

reiterates the intention to update the evaluation system so that formative examinations form a

component of the overall final student learning assessment, rather than relying only on one data

point (i.e. final exams). It also recognizes that the introduction of Early Grade Reading

Assessments (EGRA) is critical to improving early grade learning and addressing high attrition

rates and requires significantly more investment than has been the case to date. Those Early

Grade Reading Assessments will be financed by the ESPIG.

Conclusion: The Secretariat deems that Requirement 3 is met.

3. ESPIG

3.1. PAST ESPIG PERFORMANCE

In July 2012, the (then Transitional) Federal Government of Somalia officially joined the GPE

Partnership as a federal state. It was agreed that the Government of Somaliland – which regulates

its own education system – could apply separately for the Education Sector Program

Implementation Grant. GPE’s Needs and Performance Framework was applied to divide the

Somalia indicative allocation, and allocate US$ 4.2 million to Somaliland. In March 2013,

Somaliland applied with UNICEF as the Grant Agent. The program had four main components: 1)

the payment of 300 teachers’ salaries and incentives to head teachers and regional education

officers, 2) support the supervision of schools, 3) reinforcing teacher training including the

construction of a teachers training institute and 4) in-service training of female teachers in school-

based leadership. There was a 6-month delay in the start of the payment teachers’ salaries –

though this was partially due to an overambitious setting of the start date in the month of board

approval – as well as a delay with the construction of the teacher training institute, which led to an

additional 9-month extension of the program. The program closed in September 2017.

The dialogue related to the school-based leadership training of female teachers made the MOES

sensitive towards the promotion of female teachers to the position of head master. Approximately

half the female teachers that succeeded in the school-based leadership were promoted to become

either head teacher, deputy head teacher or supervisor. While the government increased the

budget allocation in 2017 to absorb teachers into the government payroll, the funds were diverted

to respond to the on-going drought. This is now addressed by the 2018 budget, which would

include the addition of 500 teachers to the payroll. Based on the projected growth of the education

budget, absorbing all teachers in public primary schools into the payroll seems within reach of

Somaliland’s financing capacity. Development partners will continue to stress the government’s

responsibility in this regard. The current ESPIG proposal is built upon the experiences with regards

to school monitoring, and it includes support to the government to operationalize the new teachers’



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training institute for in-service training. EU indicated that it will include support for the pre-service

training at the same institute in its new program.

An accelerated funding in the amount of US$1.92 million was approved in May 2017 which

supports continued access to education opportunities in drought affected communities in

Somaliland through the provision of teacher incentives, teaching and learning materials, temporary

learning spaces, school feeding programs, and water trucking. The implementation of this grant is

on track to reach or even exceed most of its targets. Most notably, the project has been reaching

substantially more children than originally forecasted, with more than 12,000 (instead of 7,500)

children attending classes in the 50 supported formal schools and more than 600 (instead of 300)

in the 5 temporary learning spaces. This has led to the re-enrollment of more than 4,000 children

who previously had dropped out, most of which have been provided with remedial classes to catch

up. The program will end by March 31, 2018.

3.2 ESPIG DESCRIPTION

The overarching goal of the proposed program is to contribute to the development of an equitable

and sustainable education system providing efficient and effective services to all learners in

Somaliland. Component 1 envisages to increase access and equity through (i) construction and

rehabilitation of learning spaces and wash facilities, (ii) back to school campaigns, (iii)

establishment of girl friendly spaces and (iv) provision of scholarships for vulnerable children,

particularly girls. Component 2 seeks to strengthen quality and learning outcomes by (i)

distribution of educational materials, (ii) support to national examinations and early grade reading

assessments, (iii) in-service teacher training, and (iv) support to the development of ECE.

Component 3 aims at building a more efficient and effective education system by (i) establishing

a school monitoring system, (ii) support to EMIS, (iii) support to disaster and emergency planning,

and (iv) strengthening community education committees.

As with its predecessor, the proposed program will be implemented through a project modality

with the Grant Agent taking direct responsibilities for implementation, monitoring and maintaining

fiduciary oversight. While the public financial system in Somaliland is still under development,

there is little room for more alignment in that respect. At this juncture, the focus of the

implementation arrangement and modality is to enhance the capacity of the MOES, most notably

with regards to in-service teacher training (operationalizing the Somaliland National College of

Education), reinforcement of EMIS and launching sector wide learning assessments, which will

further help strengthen the national examinations. Regarding the link of the GPE funds to the

sector planning processes, the program aligns to the ESP and its Annual Action Plan. As such,

the execution of activities will continue to be included in the Education Sector Plan’s Annual

Implementation Report.



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Table A: ESPIG Components and Costs

GPE

Financing

US$

% of total GPE

Total remaining MCA (after accelerated funding) 7,680,000 100%

A Access and Equity 1,605,110 20.90%

Increased enrolment (Learning Space

Construction/Rehabilitation and National Back to School

Campaign)

791,130 10.30%

Girls attending GPE supported schools benefit from affirmative action (girl-friendly spaces and scholarships)

813,980 10.60%

B Quality and Learning Outcomes 3,244,119 42.24%

Girls and boys attend GPE supported school which meet minimum standards (educational materials, quality learning environment, learning assessment)

1,111,330 14.47%

Teachers provided with pedagogical skills in literacy, gender sensitive teaching, and Social and Emotional Learning (SEL)

2,038,619 26.55%

Institutional framework of Early Childhood Education sub-sector is developed

57,050 0.74%

Girls and boys attend GPE supported ECE classes meeting minimum standards (teacher training)

37,120 0.48%

C Efficient and Effective Education System 894,223 11.64%

Quality Assurance and Standards System (QASS) 404,800 5.27%

EMIS 191,510 2.49%

Disaster and emergency strategic plan 128,123 1.67%

School and community structures promote safe, inclusive, gender sensitive basic education

169,790 2.21%

D Monitoring, Evaluation and Coordination 228,620 2.98%

Audit 48,000 0.62%

Grant Agent’s Implementation Support Costs* 1,659,928 21.61%

GRAND TOTAL (with Grant Agent's Implementation Support Costs)

7,680,000 100%

Agency Fees** 537,600 7% * Include Grant Agent's direct costs, such as Program Management, Administrative and other direct implementation

costs.

** Agency Fee is not included in the MCA and is calculated as percentage rate (agreed with each GA) from the Total

Fixed Part and Total Variable Part.



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3.3 ASSESSMENT OF THE PROGRAM DOCUMENT

The proposed program was prepared by the Grant Agent under the leadership of the government

and in consultation with the LEG, which endorsed the application package. It went through quality

assurance at the Secretariat, including an additional assessment of the Grant Agent’s capacity to

manage a grant above US$ 5 million. While this capacity assessment was positive from the start,

the Program Document was revised thoroughly to include more information on implementation

arrangements, including timeline and budget assumptions. Moreover, the Secretariat

recommended to consolidate the program around a more limited number of interventions with the

highest possible impacts. In response, the country dropped a substantial number of activities,

including those related to secondary education, which helps increase the number of scholarships

and teachers to be trained. Finally, at the recommendation of the Secretariat, the government is

using its fiscal resources to pay teachers’ salaries, and the Grant Agent has reduced its

management costs to become more aligned with that of other GPE funded programs in Somalia.

With regards to program design, the application proposes a coherent project aligned with key

priorities in the ESSP 2017-2021. It addresses critical gaps in access, quality and system

strengthening, as identified in the ESA. Like Puntland, the program uses the mutually reinforcing

interlinkages from the different components to enhance evidence building of learning outcomes

and effects of teacher training and school monitoring. This provides the potential to build the

capacity of the MOES for effective teacher training through the newly constructed Somaliland

National College of Education. At the same time, it reinforces the system to monitor and assess

the evolution of the whole sector. In addition, the program helps the government increase

enrollment of vulnerable children, and most notably girls, through scholarships, as well as through

providing an adequate, girl-friendly learning environment. It thus complements and builds upon the

lessons learned from other programs, including the EU Funded Horumarinta Elmiga and the DfID

Funded Girls Education Challenge (GEC), aiming at jointly reaching the most vulnerable schools.

This effort includes 25 alternative basic education centers which cater to remote areas and

pastoralist children. Finally, the program includes a small but potentially important component to

develop the institutional framework for the Early Childhood Education in close cooperation with the

Ministry of Endowment and Religious Affairs to facilitate its integration in Qur’anic schools.

With regards to the program budget, remarkable detail on different costs is provided and

generally well justified. The management cost for the Grant Agent remains high, but is similar to

other grant agents in Somalia and consistent with the security situation (which leads to agencies

having offices in country as well as in Nairobi, as well as to additional security measures in

Somaliland). The management cost includes the project management team in country with

administrative, logistical and security support in country and from Nairobi. In addition, there is

provision of technical assistance and supervision by international staff.



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The program includes a robust results framework that covers all interventions and has been

reinforced with outcome indicators, even if some of the targets seem ambitious from a project

perspective. The results framework identifies clear mechanisms for monitoring the indicators,

which form the basis for the monitoring and evaluation mechanism, which will be further aligned

with the M&E plan of the Ministry.

As mentioned, the proposed program will be implemented through a project modality with the Grant

Agent taking direct responsibilities for implementation, monitoring and maintaining fiduciary

oversight. While the public financial system in Somaliland is still under development, there is little

room for more alignment in that respect (aid effectiveness). Implementation arrangements have

not only been found robust within the QAR processes, but also through a specific assessment of

the Grant Agent’s capacity to manage a grant above US$ 5 million (implementation

arrangements). The implementation timeline of the program is well structured. The government

has shown previously its capacity to implement within a given timeframe, including with support

from the current Grant Agent for the accelerated support. However, the increased number of

activities may warrant a reinforced monitoring.

While identification of risks and mitigation measures seems adequate in Somaliland’s fragile

context. However, the scenarios on the effect of droughts on program implementation have little

information, such as how the project may evolve to deal with recurrent droughts, or whether it may

need to adapt part of the proposal towards emergency funding to deal with the crisis. This said, it

is expected that the maximum country allocation for Somalia will be increased, which would allow

for additional accelerated funding to deal with the effects of the continued drought.

With the projected growth in fiscal revenues and the increase of the budget share for education,

there is a real possibility for financial sustainability if resources will be used for core expenses,

including to tackle financial burdens to access schools. Dialogue on scaling up some of the project

interventions, such as scholarships and/or school grant will be important in that regard. The

financial capacity to maintain specialized QASS and EMIS staff will be important to ensure the

technical sustainability of those activities. The integration of the teachers’ training in the

operationalization of the Somaliland National College of Education is positive in this regard.

4. VARIABLE PART

The GPE Grant and Performance Committee has approved the ex-ante approach for the

implementation of the Education Sector Program Implementation Grant (ESPIG) for Somaliland.

The new Education Sector Strategic Plan (ESSP) for the period 2017-2021 has specific strategies

on equity, efficiency and learning outcomes:



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Equity. Interventions are planned to increase access to basic education for girls, children with

special needs, those affected by emergencies and to expand education opportunities for nomadic

pastoralist students and children in hard to reach areas. Measures include the expansion of school

infrastructure (including girl-friendly spaces and accessibility for special needs children) targeting

disadvantaged areas, school feeding and take-home rations, providing flexible modalities for

formal basic education to pastoralist children, and increasing alternative basic education to

reintegrate out-of-school children.

Efficiency. Several measures are proposed to increase the system’s efficiency, mostly focusing

on reducing the high dropout, including 1) creating learning spaces for upper primary and

secondary in disadvantaged areas, 2) conducting sensitization campaigns against dropout of girls

and increasing the number of female teachers as role models; 3) introduction of remedial learning

strategies to promote student survival and transition rates.

Learning Outcomes. To improve learning outcomes, a series of measures will be implemented

with the most important focus on the reinforcement and expansion of the (in-service) teacher

training. Others include the development of curriculum material to support teaching and learning

based on the recently completed competency based national curriculum framework, distributing

learning materials, improving school and teacher support through improved quality assurance

systems, and strengthening examination and certification.

Both the appraisal and the assessment of the Secretariat concluded positively on the strategic

dimension of the ESSP, mentioning that the main underlying causes for its key challenges in

equity, efficiency and learning outcomes are well identified and addressed through relevant

strategies and actions.

5. RECOMMENDATIONS

Considering Somaliland’s fragile context, the Secretariat considers that the three funding model

requirements are met.

The Secretariat finds that the application proposes a relevant and coherent program, addressing

critical gaps in access and quality, building on the lessons learned from other programs. It provides

the potential to build the capacity of the government, most notably with regards to in-service

teacher training (operationalizing the Somaliland National College of Education). The

reinforcement of EMIS and launching of sector wide learning assessments will further help

strengthen the national examinations.

The GPE Secretariat advises the Grants and Performance Committee to recommend the

GPE Board for approval of the US$ 7.68 million grant, with an ex-ante approach, with the

following recommendations:



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- to encourage donors to participate in the Education Steering Committee

meetings in Hargeisa and to include the current program in the 6-monthly joint

Education Steering Committee review of different programs in Somaliland

- to set out a longer-term plan on how the increasing budget will finance the

education sector in general – including financing national examinations, EMIS,

QASS, teacher salaries as well as other running costs for schools in order to

alleviate families’ financial burdens in sending their children to school.



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Annex 1: Major Interventions of Development Partners

Donor name Major interventions Financial scale

EU

Sector-wide programs (Horumarinta Elmiga and SWES-3) addressing all the key sub-sectors of education.

US$ 4.5M/year

DFID Girls Education Challenge (GEC) Initiative GBP$ 2M/year

USAID

Somali Youth Learner Initiative (SYLI) focusing on improving secondary education opportunities and TVET for the youth.

US$ 2M/year

Educate a Child To promote equitable access to quality formal education for 20,000 out of school children in marginalized communities.

US$ 1.6M



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Annex 2: Quality Standards for the Assessment of Program Document

Criteria Description of Criteria Observations

1. Program Design

Program addresses critical evidence-based challenge(s) identified in the education sector plan

This substandard is considered met. The program components address issues and challenges identified in the ESA 2012-16; drawn from the (ESSP 2017-2021); and the program design is based on previous programs (UNICEF, DFID, EU) (Program document pages 5-6; and pages 17-28).

Program has a logical and evidence-based results chain between interventions, outputs and outcomes

This substandard is considered met. The Results Framework clearly links activities, outputs and expected outcomes; and the program is well focused on achieving those outcomes, through interventions which build upon previous programs (Program Document pages 5-6; 17-28).

GPE’s strategic goals and objectives are adequately reflected

This standard is considered met, GPE’s strategic goals are adequately reflected. The program is embedded in a long-term vision of the Somaliland National Policy of Education (SNPE 2015-2030) and consistent with the SDG 4 and GPE 2020 goals and objectives. The medium-term operational tool for such a vision is the ESSP 2017-2021. The objectives include (a) Goal 4: Quality education that ensures inclusive and lifelong learning; (b) Goal 5: Gender equality; (c) Goal 10: Reduced geographic and socio-economic inequalities; and (d) Goal 16: Peace and Justice for a peaceful and inclusive society in a fragile country context.



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The program’s rationale, activities and results’ chain are provided (Program Document, pages 14-28; and Application Form, pages 18-21).

2. Program Budget

Program cost is justified

This standard is considered met. The overall cost of the program is justified. The program documentation provides details of the overall budget; as well as costs by component, sub-component, and activities. In addition, detailed unit costs are also provided by activity, along with a budget narrative paper which shows unit costs reasonableness via comparisons. A disbursement calendar is presented for the period of program implementation by major component. Finally, the share of the program’s direct cost charged by the Grant Agent (Save the Children) amounts to just above 20%; and aligned with previous education program cost levels and structures in fragile contexts (Application Form pages 30-32; Budget Assumptions Narrative).

Program is cost-effective (assessment tool under development)

3. M&E

Program includes an M&E framework comprised of a strategy and methods to ensure accountability for achievements

This standard is considered met. The ESP’s M&E Framework is in place; and appropriate arrangements are currently being developed for the program. Drawing on the M&E framework for the ESP, the program’s M&E arrangements are being developed to monitor, assess progress and results; with output indicators, targets and expected outcomes from



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the results framework. Such M&E arrangements will provide common understanding, and allow for timely consultations and inputs from MOES’s Departments (EMIS, QASS & M&E, etc.). In addition to regular M&E activities, a Mid-Term Review will be conducted to assess progress and achievement against indicators and targets as per the Logical Framework. At the end, a summative and participatory evaluation will be done by an external evaluator to assess results, challenges and lessons learned (Program Document, page 39; and Grant Application Form, pages 34-35)

Results Framework is robust and covers all interventions

This standard is considered met. The Results Framework is appropriate. The program is built around an adequate results framework (RF) with outputs and expected outcomes by interventions and planned activities. Data from the ESA 2012-2016 and ESSP 2017-2021 are used to establish baseline indicators and targets (Application Form pages 23-30).

4. Implementation Arrangements and Readiness

Implementation arrangements are appropriate

This standard is considered met. The implementation and fiduciary arrangements are appropriate Implementation arrangements are well described and determine institutions and national actors directly responsible for processes and the flow of funds. These roles and responsibilities were derived based on previous experiences. The MOES (via the Program Steering Committee) will be involved in the management and implementation of the program, including daily management, joint and periodic reviews, and monitoring and evaluation with the support of the Grant Agent (Save the Children).



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The Program Document describes the roles and responsibilities of all actors, incl. the Grant Agent, Education Sector Committee, Coordinating Agency; with details of fiduciary/financial management and audits functions (Program Document, pages 30-34).

Program is ready to be implemented

This standard is considered met. The program is ready to be implemented. The timeline for the implementation of all program interventions and activities is clearly indicated; with quarterly details provided in the program work plan (Work Plan Excel Sheet). In addition, a strategy is in place for procurement and logistics, bottlenecks that often delay program implementation. Following the Grant Agent’s policies, procurement processes to be followed will depend on value and risk (Flowchart, Program Document, page 36).

5. Risk(s) Identification and Mitigation Measures

Program includes appropriate risks matrix

This standard is considered met. The risk identification matrix and associated mitigation measures are appropriate. The program has identified main risks along with risk mitigation measures and actions. Four categories of risks were addressed: (i) Outbreak of natural disasters (flood, drought); (ii) Outbreak of clan conflicts preventing access to project sites and affecting schools; (iii) Insufficient fiscal resources to cover critical spending such as teachers’ salaries; and (iv) Lack of capacity for an effective assessment and monitoring of program implementation (Program Document; page 38; and Grant Application Form; page 35).

6. Sustainability Program has been designed to be sustainable

This standard is considered met.



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To ensure ownership, the MOES is fully involved in program implementation in three strategic areas: (i) institutional capacity building; (ii) technical training, and (iii) risk and financial management (see actions in Program Document, pages 29; and 36-37). Nonetheless, Somaliland faces many challenges for capacity building in the short-term due to security and frequent natural disasters. Progress in this critical area is expected to be slow in the short-term.

7. Aid Effectiveness Program is aligned with the main criteria of aid effectiveness

This standard is considered met. The program is aligned with the main criteria of aid effectiveness, and exceptions are justified given the fragile country context. (i) The program is aligned with the ESSP 2017-21, and consistent with GPE’s strategic vision and objectives; (ii) the program implementation arrangements are well-described to determine the extent to which country systems are used or not; with justifications for exceptions (Grant Application Form, pages 37-39); (iii) the program includes capacity building and technical training activities for sustainability; and (iv) there is evidence that the Local Education Group has participated actively in all phases of the planning processes and policy dialogue.



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Documents

ACKGROUND AND EDUCATION SECTOR OVERVIEW · percent passing. Numeracy and mathematics results are weak in form four exams, in Grade 8 exams, in MLA 4 and in studies done on non-formal