Special Report No 12/2010 ‘EU Development Assistance for Basic Education in Sub-Saharan Africa and South Asia’
Date: 2011-02-16
Institutions: European Court of Auditors
Subjects: Asia, EU aid, EU programme, education, sub-Saharan Africa

EUropEAn 
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EU DEvElopmEnt AssistAncE for 

BAsic EDUcAtion in sUB-sAhArAn 

AfricA AnD soUth AsiA

En

 
 
 
 
special r eport no  12 

 2010

EU DE vElopmEnt 
AssistAncE  for BAsic 
EDUc Ation in  
sUB-sAhAr An Afric A 
AnD  soUth AsiA

(pursuant to Article 287(4), second subparagraph, tfEU)

EUropEAn coUrt of  AUDitors

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special r eport no 12 

 2010

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special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

contEnts

3

Paragraph

AbbreviAtions

GlossAr y

i–vii 

executive summAr y

1–8 

1–3 

4–8 

introductio n

GlobAl donor commitment s

eu Policy commitment s

9–15 

Audit scoPe  And  APPro Ach

16–70 

observAtions

16–43 

 hAve the eu’s interventions effectively contributed to AchievinG the intended 
imProvements in bAsic educAtion ?

44–70 

 does the commission mAnAGe its interventions in educAtion well ?

71–83 

conclusions And recommend Ations

71–75 

76–81 

 the eu interventions Achieved some of the exPected imProvements in bAsic 
educAtion in sub-sAhArAn AfricA And south AsiA, but less thAn intende d

 the commission’s mAnAGement did not consistently ensure APProPriAte ProGrAmminG  
And imPlementAtion of eu intervention s

82–83 

 recommendAtion s

Annex i –

Annex ii –
Annex iii –
Annex iv –
Annex v –

Annex vi –

Annex vii –  

 AllocAtions to educAtion And GenerAl budGet suPPort in south AsiA  
And sub-sAhArAn Afric A
 list of interventions Audite d
 the Attribution issue in budGet suPPort ProGrAmme s
 Audited ProGrAmmes And Projects with summAry result s
 overview of summAry results Achieved Per country And ProGrAmme 
Audited/reviewed
 ProGress towArds ensurinG PrimAry educAtion in the countries 
exAmine d
 ProGress towArds Gender PArity in the countries exAmine d

rePl y of the  commission

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
ABBrE viAtions

4

AcP: African, caribbean and pacific states party to the l omé convention 

confemen: conférence des ministres de l’éducation des pays ayant le français en partage (conference of 
national education ministers of french-speaking countries) 

csP: country strategy paper

dci: Development cooperation i nstrument

dG: Directorate-General of the European commission

ecsel: European community support to education in liberia

edf: European Development fund

efA: Education for All

esP: education sector programme (namibia)

eu: European Union

europeAid: EuropeAid co-operation o ffice (European commission)

fti: fast track i nitiative

Gbs: general budget support

hQ: headquarters

iAc: i nternal Audit capability

mdG: millennium development goal

mtr: mid-term review

ner: net enrolment rate (see Glossary)

nGo : non-governmental organisation

oj: o fficial Journal

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PAsec : programme d’analyse des systèmes éducatifs de la confemen (p rogramme for the analysis of 
educational systems of the confemen countries)

Pets: public expenditure tracking survey

PefA: public expenditure and financial accountability

Pdde : plan décennal de développement de l’éducation (n iger — ten-year education development 
plan)

Pfm: public financial management

sacmeq: s outhern and Eastern Africa consortium for m onitoring Educational Quality

sbs: sector budget support

smArt : specific, measurable, attainable, relevant, time-bound

sPsP : sector policy support programme

tvet: technical and vocational education and training

unesco: United nations Educational, s cientific and cultural organisation

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GlossAr Y

6

basic education : in Unesco’s international standard  classification of Education, primary education 
together with the first three years of secondary education. 

Gender parity index (GPi) : ratio of female to male values of a given indicator: a Gpi of 1 indicates parity 
between genders; a Gpi below 1 indicates a disparity in favour of males.

Gross enrolment rate (Ger) : number of pupils enrolled in a given level of education, regardless of age, 
expressed as a percentage of the population in the relevant official age group. GEr can be higher than 
100 % as a result of grade repetition and enrolment of children younger and older than the normal age 
for the grade concerned (early or late entry).

Gross intake rate to last grade of primary education: number of new entrants to the last grade of 
primary, regardless of age, expressed as a percentage of the total population of the theoretical entrance 
age to the last grade of primary. it is the most widely used ‘proxy’ indicator to measure the completion 
rate.

impact indicators: they relate to the overall goal of the programme. they measure long-term and aggre-
gated results or changes at the level of beneficiaries (e.g. overall literacy rate, graduate unemployment, 
relation between education level and income, poverty rate, etc.).

input indicators: they relate to resources. they measure the human, financial, physical and other (admin-
istrative and regulatory) resources provided for implementing the programme (e.g. budget devoted to 
education, cost per student, decree on school boards, etc.).

net enrolment rate (ner ): pupil enrolment of the official age group for a given level of education, 
expressed as a percentage of the population of that age group.

outcome indicators: they relate to the purpose of the programme. they measure the results or conse-
quences of outputs at the level of beneficiaries (e.g. net or gross enrolment rate, school retention rate, 
completion rate, learner achievement, etc.).

output indicators (also called process indicators): they relate to the direct results of activities. they 
measure the immediate and concrete results of the different activities (processes) implemented and 
inputs used (e.g. number of schools built, number of teachers trained, learner/textbook ratio, etc.).

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result : for sector programmes, this report uses ‘result’ in relation to the commission’s ‘input–output–
outcome–impact’ terminology. A ‘result’ corresponds to an ‘outcome’ such as primary school enrolment, 
and outcome/results indicators measure the results at the level of the beneficiaries (e.g. nEr).

survival rate to last grade of primary education: percentage of the number of pupils enrolled in the 
first grade that is expected to reach the last grade. the ideal value should be 100 %.

sustainability: in relation to development projects, the degree of assurance that the project or its 
results will continue as long as required (i.e. will be sufficiently well established, self-sufficient and/or 
funded to do so). 

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EXEcUtivE 
sUmm Ar Y

i.
i m p r o v i n g   t h e   a v a i l a b i l i t y   a n d   q u a l i t y 
o f   e d u c a t i o n   i s   a   m a j o r   f a c t o r   i n   t h e   g l o -
b a l   f i g h t   a g a i n s t   p o ve r t y,   re f l e c t e d   i n   t h e 
U n i t e d   na t i o n s   m i l l e n n i u m   d e v e l o p m e n t 
g o a l s   (mD G s )   a n d   by   t h e   E d u c a t i o n   fo r   A l l 
m ove m e nt   ( Ef A) .  th e   Eu ro p e a n   co n s e n s u s 
o n   D e v e l o p m e n t   p r e s e n t s   t h e   E U ’s   p r i o r i -
t i e s   i n   t h i s   f i e l d   a s   q u a l i t y   p r i m a r y   e d u c a-
t i o n ,   v o c a t i o n a l   t r a i n i n g   a n d   a d d r e s s i n g 
in equalities.

ii.
t h i s   a u d i t   a s s e s s e s   w h e t h e r   E U   d e v e l o p -
m e n t   a s s i s t a n c e   i n   s u b -sa h a r a n   A f r i c a 
a n d   s o u t h   A s i a   h a s   h e l p e d   e f f e c t i v e l y 
t o   i m p r o v e   t h e   a c c e s s i b i l i t y   a n d   q u a l i t y 
o f   b a s i c   e d u c a t i o n   p r o v i s i o n .   f o r   e i g h t 
s e l e c t e d   c o u n t r i e s   i t   c o m p a r e s   o u t c o m e s 
with the targets set out in financing agree -
m e n t s ,   a n d   e x a m i n e s   i n   d e t a i l   h o w   t h e 
c o m m i s s i o n   p r o g r a m m e d   a n d   m o n i t o r e d 
its  spend in g.

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99

EXEcUtivE 
sUmm Ar Y

iii.
o v e r a l l ,   s i g n i f i c a n t   p r o g r e s s   h a s   b e e n 
m a d e ,   a l t h o u g h   o n l y   4 5   %   o f   t h e   t a r g e t s 
i n   t h e   a u d i te d   f i n a n c i n g   a gre e m e nt s   we re 
f u l l y   a c h i e v e d .   fo r   t h e   g o a l   o f   e n s u r i n g 
p r i m a r y   e d u c at i o n   fo r   a l l   c h i l d re n   (mD G   2 ) 
o n l y   s o m e   o f   t h e   i n t e n d e d   i m p r o v e m e n t s 
w e r e   a c h i e v e d   a n d   p r o g r e s s   h a s   i n   g e n -
e r a l   b e e n   t o o   s l o w   t o   e n s u r e   t h a t   t a r g e t s 
fo r   2 0 1 5   w i l l   b e   m e t .   A s   re g a rd s   e l i m i n a t -
i n g   g e n d e r   d i s p a r i t y   i n   e d u c a t i o n   ( p a r t   o f 
mD G   3 )   t h e re   w a s   m o re   s u c c e s s,   a l t h o u g h 
the overall figures mask significant persist-
i n g   i n e q u a l i t i e s   i n   p a r t i c u l a r   re gi o n a l   a n d 
s o c i a l   g r o u p s .   fo r   t h e   t h i r d   p r i o r i t y   g o a l , 
i m p r o v i n g   e d u c a t i o n   q u a l i t y,   f e w   o f   t h e 
intended improvements were ac hi e ve d. 

iv.
the choice of aid deliver y method is signifi-
c a n t ,   s i n c e   i t   d e t e r m i n e s   t h e   m e c h a n i s m s 
for monitoring results. Where sec tor budget 
s u p p o r t   w a s   t h e   a i d   d e l i v e r y   m e t h o d   t h i s 
c h o i ce   g e n e ra l l y   co n fo r m e d   w i t h   t h e   co m -
m i s s i o n   g u i d e l i n e s .   i n   s u b - s a h a r a n   A f r i c a 
t h e   i n c re a s i n g   u s e   o f   g e n e r a l   b u d g e t   s u p -
por t has much reduced the ex tent to which 
d e t a i l e d   t a rg e t s   a n d   i n d i c a t o r s   a re   s e t   fo r 
basic education, and sec tor dialogue is less 
i n t e n s i v e .   t h e   c o m m i s s i o n   d i d   n o t   f u l l y 
c o n s i d e r   t h e   a d v a n t a g e s   o f   t h e   m e a s u r e s 
fo r   m i t i g at i n g   f i d u c i a r y   r i s k s   s u c h   a s   t h o s e 
used in pooled funding.

v.
G e n e ra l l y   t h e   i n d i c ato r s   u s e d   by   t h e   co m -
m i s s i o n   h ave   a n   a p p ro p r i a t e   fo c u s   o n   t h e 
mD G s ,   a l t h o u g h   i n s u f f i c i e n t   a t t e n t i o n   i s 
p a i d   t o   i n d i c a t o r s   f o r   e d u c a t i o n   q u a l i t y. 
h o w e v e r,   t h e   n a t i o n a l   e d u c a t i o n   m a n -
a g e m e n t   i n f o r m a t i o n   s y s t e m s   t h a t   t h e 
co m m i s s i o n   r e l i e s   o n   d o   n o t   c o n s i s t e n t l y 
p r o v i d e   s u f f i c i e n t ,   r e l i a b l e   a n d   t i m e l y 
in for mation . 

vi.
c o o r d i n a t i o n   w i t h   o t h e r   d o n o r s   h a s   g e n -
e r a l l y   i m p r o v e d   a l t h o u g h   i t   e n t a i l s   c o m -
p r o m i s e s   w h i c h   s o m e t i m e s   a f f e c t e d   t h e 
c o m m i s s i o n’s   o w n   m a n a g e m e n t   o r   p r i o r i -
t i e s .   E d u c a t i o n   e x p e r t i s e   i s   n o t   o p t i m a l l y 
a s s i g n e d   a n d   d e v e l o p e d   i n   D e l e g a t i o n s , 
w h i c h   r e d u c e s   t h e   c o m m i s s i o n’s   a b i l i t y   t o 
m a i nt a i n   s e c to r   d i a l o g u e   i n   e d u c at i o n .  th e 
E U   p r o v i d e d   c a p a c i t y   d e v e l o p m e n t   s u p -
p o r t   b u t   i n   m o s t   c a s e s   i t   d i d   n o t   w o r k   a s 
intended.

vii.
on   t h e   b a s i s   o f   t h e   a b o v e   o b s e r v a t i o n s , 
t h e   c o u r t   m a k e s   a   s e t   o f   r e c o m m e n d a -
t i o n s   w i t h   t h e   a i m   o f   i m p ro v i n g   t h e   co m -
m i s s i o n’s   m a n a g e m e nt   o f   E U   d e ve l o p m e nt 
ass istan ce to education.

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introDUction

10

1. 

2.  

3.  

Glo b Al   d o n o r   co m m i t m e n t s

the European Union (EU) has recognised education as a major 
f a c to r   i n   t h e   g l o b a l   f i g ht   a g a i n s t   p ove r t y 1.  th ro u g h   t h e   Ed u -
c a t i o n   f o r   A l l   m o v e m e n t   ( Ef A ) 2  a n d   t h e   U n i t e d   na t i o n s   m i l -
l e n n i u m   d e ve l o p m e nt   g o a l s   (mD G s ) 3  t h e   E U   a n d   t h e   i nte r n a -
tio nal  don or co mmu nit y  at l arg e h ave commi tte d th e mse lve s 
t o   s u p p o r t   d e v e l o p i n g   c o u n t r i e s   t o   a c h i e v e   a   m u l t i t u d e   o f 
ob jec tive s,  inclu ding   en su r ing  pr i mar y   e duc ati on   for   al l  ch il-
dren, eliminating gender inequalities and improving education 
qual it y.

A l t h o u g h   c o n s i d e r a b l e   p r o g r e s s   h a s   b e e n   m a d e   s i n c e   2 0 0 0 
t h e   U n e s c o   E d u c a t i o n   fo r   A l l   ( Ef A )   E FA   g l o b a l   m o n i t o r i n g   r e -
po r t   201 0  es t imates  t hat   72  million   ch ildre n  s ti l l  do  n ot  h ave 
a cce s s   to   b a s i c   e d u c at i o n   ( s e e   G l o s s a r y ) .   fo l l ow i n g   a   s i gn i f i-
cant increase in ex ter nal aid for basic education from 1999 to 
20 04,  t he g lo bal  tren d has  rever s ed.  G lobal a id  com mit me nt s 
fo r   b a s i c   e d u c a t i o n   we re   2 5   %   l o we r   i n   2 0 0 7   c o m p a re d   w i t h 
2004. the EFA global monitoring repor t 2010 estimates that the 
global gap between aid commitments made by donors and the 
ac tual spending is some 20 billion Us dollars. i t also estimates 
t h a t   t h e   g l o b a l   a n n u a l   f u n d i n g   g a p   fo r   e n a b l i n g   d e ve l o p i n g 
cou nt r ies to re a ch  the Ef A  g oals  is some 1 6  billion  Us d ollar s 
w i t h   s u b - s a h a ra n   Af r i c a   a cco u nt i n g   fo r   a ro u n d   t wo   t h i rd s   o f 
the  sho r t fall. 

Wi t h   t h e   pa r i s   D e c l a ra t i o n   o f   2 0 0 5   a n d   t h e   Acc ra   Ag e n d a   fo r 
A c t i o n   o f   2 0 0 8 ,   t h e   E U   a n d   t h e   g l o b a l   d o n o r   c o m m u n i t y   i n 
general has agreed to a set of principles for more effec tive aid 
(including in par ticular for the mDGs), by improving harmoni -
sation and alignment of aid deliver y methods and procedures 
through enhanced cooperation and greater reliance on coun -
tr y s ys tem s.

1  Joint statement by the 
commission and the council, 

10 november 2000 (council 

Document 12929/00).

2  EfA is a global movement led 
by Unesco, aiming to meet the 

learning needs of all children, 

youth and adults by 2015. the 

movement was launched in 

1990, with the adoption of the 

Jomtien Declaration (http://

www.unesco.org/education/ 

efa/ed_for_all/background/

jomtien_declaration.shtml).  

the six EfA goals are: 1. Expand 

early childhood care and 

education; 2. provide free and 

compulsory primary education 

for all; 3. promote learning and 

life skills for young people and 

adults; 4. increase adult literacy 

by 50 %; 5. Achieve gender 

parity by 2005, gender equality 

by 2015; 6. improve the quality 

of education.

3  mDG 2, ‘Achieve universal 
primary education’, has as a 

target to ensure that, by 2015, 

children everywhere, boys 

and girls alike, will be able to 

complete a full course of primary 

schooling. mDG 3, ‘promote 

gender equality and empower 

women’, includes the target of 

eliminating gender disparity 

in primary and secondary 

education, preferably by 2005, 

and at all levels no later than 

2015.

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4. 

5. 

6. 

e u   Po l i c y   co m m i t m e n t s

A commission communication of 2002 4 noted that the strategy 
t o   b e   p u r s u e d   wo u l d   i nvo l ve   s u p p o r t   fo r   b a s i c   e d u c a t i o n   a s 
the  first  pr ior it y.

4  com(2002) 116 on education 
and training in the context of 

poverty reduction in developing 

 th e   2 0 0 5   d e ve l o p m e nt   p o l i c y 5  p l a ce d   a   gre ate r   e m p h a s i s   o n 
contributing to the mDGs and identified ‘human development ’, 
i n c l u d i n g   e d u c a t i o n ,   a s   o n e   o f   n i n e   a r e a s   w h e r e   t h e   c o m -
m i s s i o n   wo u l d   b e   p r i m a r i l y   a c t i ve.   i t   n o te d   t h at   t h e   co m m u-
n i t y   a i m e d   to   co nt r i b u te   to   Ef A ,   a n d   s t ate d   t h at   p r i o r i t i e s   i n 
e d u c a t i o n   we re   q u a l i t y   p r i m a r y   e d u c a t i o n ,   vo c a t i o n a l   t r a i n-
ing and addressing inequalities. par ticular attention would be 
d e vo te d   to   p ro m o t i n g   gi r l s’  e d u c at i o n   a n d   s a fe t y   at   s c h o o l s, 
a n d   s u p p o r t   wo u l d   b e   p rov i d e d   to   t h e   d e ve l o p m e nt   a n d   i m-
p l e m e n t a t i o n   o f   n a t i o n a l l y   a n c h o re d   s e c t o r   p l a n s   a s   we l l   a s 
p a r t i c i p a t i o n   i n   r e g i o n a l   a n d   g l o b a l   t h e m a t i c   i n i t i a t i v e s   o n 
edu catio n. 

 the EU’s development assistance to education is mainly funded 
b y   t h e   D e v e l o p m e n t   c o o p e r a t i o n   i n s t r u m e n t 6  ( D c i )   a n d   t h e 
E u r o p e a n   D e v e l o p m e n t   fu n d 7  ( E Df) .   fu n d i n g   f r o m   t h e   Dc i  
i s   a l s o   m a d e   a v a i l a b l e   t o   n o n   s t a t e   a c t o r s /   c i v i l   s o c i e t y   o r -
gan isat ion s  o f  w hich  s ome   are  a c t ive   as   ad vocate s   or   s e r v ice 
providers in the education sec tor. the commission’s contribu-
tions to the Ef A fast track i nitiative (fti) 8 are funded from the 
E Df  a n d   Dc i.   t h e   a l l o c a t i o n s   t o   d i re c t   s u p p o r t   t o   e d u c a t i o n 
i n   s o u t h   A s i a   i n   t h e   c u r r e n t   p r o g r a m m i n g   p e r i o d   ( 2 0 0 7 – 1 3 ) 
t o t a l l e d   4 5 2 , 0  m i l l i o n   e u r o   o r   1 7 , 7   %   o f   t h e   t o t a l   d e v e l o p -
ment as sist ance  p ro grammed.  i n  s ub -sah ara n Afr ic a th e total 
of the allocations to direc tly suppor t education was 344,6  mil-
l i o n   o r   2 , 8  %   o f   t o t a l   p r o g r a m m i n g .   i n   s u b -sa h a r a n   A f r i c a , 
g e n e r a l   b u d g e t   s u p p o r t ,   w h i c h   c a n   b e n e f i t   e d u c a t i o n   i n d i-
re c t l y,   a m o u n te d   to   a   to t a l   o f   3   3 8 8 , 8   m i l l i o n   e u ro   o r   2 7 , 6   % 
of total programmed development assistance for 2008–13 (see  
Tab le 1  and  A n ne x I ).

countries.

5  European consensus 
on Development (oJ c 46, 

24.2.2006, p. 1). 

6  regulation (Ec) no 1905/2006 
of the European parliament and 

of the council of 18 December 

2006 establishing a financing 

instrument for development 

cooperation (oJ l 378, 

27.12.2006, p. 41). A total of 

16 897 million euro is allocated 

to countries in latin America, 

Asia, central Asia, the middle 

East and south Africa for the 

programming period 2007–13.

7  commission Decision c(2007) 
5223 concerning the indicative 

allocations for national indicative 

programmes under the 

multiannual financial framework 

for the period 2008–13 of the 

Acp–Ec partnership Agreement. 

A total of 13 201,7 million euro 

is allocated to the African, 

caribbean and pacific states.

8  the Education for All fast 
track initiative is a global 

partnership between donor 

and developing countries to 

speed the progress towards the 

millennium development goal of 

universal primary education by 

2015. All lower-income countries 

which show serious commitment 

to achieve universal primary 

completion can receive support 

from the fti.

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12

7. 

 th e   co m m i s s i o n   p rov i d e s   a s s i s t a n ce   to   t h e   e d u c at i o n   s e c to r 
thro u gh b u dget  s up p o r t,  p o oled f und in g  an d proj ec ts. i n  t he 
c o m m i s s i o n’s   d e f i n i t i o n   t h e r e   a r e   t w o   m a i n   t y p e s   o f   b u d g -
e t   s u p p o r t :   ( i )   g e n e r a l   b u d g e t   s u p p o r t   (G Bs) ,   re p re s e n t i n g   a 
t ra n s fe r   to   t h e   n at i o n a l   t re a s u r y   i n   s u p p o r t   o f   a   n at i o n a l   d e -
v e l o p m e n t   o r   r e fo r m   p o l i c y   a n d   s t r a t e g y ;   ( i i )   s e c t o r   b u d g e t 
suppor t (sBs), representing a transfer to the national treasur y 
in  su p p or t of a sec to r p rogramm e.  B ot h  t y pes  of  budg et  sup -
por t consist of a transfer to the national treasur y of a par tner 
countr y. therefore, there is no procedural distinc tion between 
G Bs  a n d   sBs.   t h e y   a r e ,   h o w e v e r,   d i s t i n c t   t o   t h e   e x t e n t   t h a t 
they have different objec tives. GBs aims to suppor t a national 
d e v e l o p m e n t   p o l i c y   a n d   s t r a t e g y   a n d   a l s o   p r o v i d e   v a r i a b l e 
tranches, usually linked to health and education indicators, to 
give  add it io nal   incentives   to  ac hi e vi ng   pe r for man ce   in   t he se 
cr it ica l  a re as,   w h ile  sBs  se eks  to  accelerate  progre ss  toward s 
t h e   p a r t n e r   c o u n t r y ’s   s e c t o r   g o a l s .  t h e   d i f f e r e n c e   i n   o b j e c -
tive s  is  re fle c ted  in  the  co n dit ion s  an d  d ial ogue.   A  pool  f un d 
i s   a   f u n d   t h a t   re c e i ve s   c o n t r i b u t i o n s   f ro m   d i f fe re n t   e x t e r n a l 
agencies, and in cer tain cases from gover nments, to finance a 
set   of   b udg et  l in es  or  ac tivities  agre e d  as   e li gible   in   s uppor t 
of a sec tor programme. finally, the commission can decide to 
a p p l y   t h e   re l e va nt   p ro c u re m e nt   a n d   gra nt   awa rd   p ro ce d u re s 
whe n f inan cin g ear mar k ed ac tivi ti es  ( proje c ts ).

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8. 

Table 1 shows the direc t allocations to education and general 
budget suppor t in south Asia and sub -saharan Africa.  i t shows 
that in sub -saharan Africa EU development assistance direc tly 
allocated to education (through projec ts, pool funds and sec-
to r   b u d g e t   s u p p o r t )   d e c re a s e d,   a l t h o u g h   G Bs  h a s   i n c re a s e d. 
Edu catio n  is  in  general   a  s ign ificant  com pone nt  of  t he   s oc i al 
sec to r  p rogress   th at  is   exp ec ted   to  res ult  f rom  GBs .  progress 
i n   e d u c a t i o n   i s   t h e n   re f l e c te d   i n   t h e   p e r fo r m a n ce   i n d i c a to r s 
an d re lated mo n ito r ing,  in cl udin g  poli c y  di alog ue.

tAb l e   1

di r e c t   Al lo c At i o n s  to   e d u c At i o n   An d   Ge n e r Al   b u dGe t 
s uP Po r t   i n   so u t h   A s iA   An d   s u b -s AhAr An   A f r i c A 1

Number of 
countries 
benefiting 
from educa-
tion specific 
support  
(focal  
sector)

2 of 8

4 of 8

10 of 50

10 of 50

EC financing (million euro)

Total pro-
gramming

Direct  
allocation to 
education2

General  
budget  
support (GBS)

For education 
out of total 
program-
ming

For GBS out 
of total pro-
gramming

1 824,1

2 555,0

8 804,8

12 294,0

184,0

452,0

396,2

344,6

0

0

2 314,3

3 388,8

10,1 %

17,7 %

4,5 %

2,8 %

0 %

0 %

26,3 %

27,6 %

Region

Program-
ming period

South Asia

Sub-Saharan 
Africa

2002–06

2007–13

2003–07

2008–13

1 

 A detailed, country-by-country overview is provided in Annex I. south Africa is included here in the figures for sub-saharan 
Africa, although it is not funded from EDf but from the Dci like the countries of south Asia (see paragraph 6).

2  figures include basic education, upper secondary education and tvEt as they were not always possible to disaggregate.

Source: European commission, 2010.

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 AUDit scopE AnD ApproAch

14

9. 

 the  au dit  asse ss ed  w het her  the  E U’s  de velopm ent  ass is t ance 
made an effec tive contribution to its polic y priorities for edu-
cation in sub -saharan Africa and south Asia. i t focused on the 
fol low ing  t wo q ues tions:

(a) 

h a v e   t h e   E U ’s   i n t e r v e n t i o n s   e f f e c t i v e l y   c o n t r i b u t e d   t o 
a c h i e v i n g   t h e i r   i n t e n d e d   i m p r o v e m e n t s   i n   b a s i c   e d u c a -
t ion?

(b ) 

D o e s   t h e   co m m i s s i o n   m a n a g e   i t s   i nte r ve nt i o n s   i n   e d u c a -
t ion  wel l? 

9  the defi nition of south 
Asia follows the commission’s 

defi nition and comprises: 

Afghanistan, Bangladesh, 

Bhutan, india, maldives, nepal, 

pakistan and sri lanka.

10.  

the audit scope was limited to basic education in sub -saharan 
Af r i c a   a n d   s o u t h   As i a 9.  th e s e   a re   t h e   s u b - re gi o n s   m o s t   l i k e l y 
no t to  meet  ed uc atio n g oal s by  2 01 5  ( se e M a p) . 

m A P

s u b - s A h A r A n   A f r i c A   A n d   s o u t h   A s i A

Source: Global Administrative Unit layers (GAUl), Un–fAo.

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10  missions were to Burkina faso, 
namibia, nepal and tanzania, 

while desk reviews covered 

Bangladesh, liberia, niger and 

pakistan. 

15

11.  

 th e  a ud it  wo r k  do ne  inc l ud ed  rev i ews  of   d ocum entation   an d 
inter views with commission staff at headquar ters and in dele -
gations, and detailed examinations of the commission ac tions 
i n   e i g h t   b e n e f i c i a r y   c o u n t r i e s ,   f o u r   b y   m i s s i o n   a n d   f o u r   b y 
des k  review 10.  the   c r ite r ia  fo r  th e  s elec tion  o f  count r ie s  we re 
geographical spread across sub -saharan Africa and south Asia, 
and the inclusion of fragile states. the audit criteria used were 
d e r i v e d   d i r e c t l y   f r o m   c o m m i s s i o n   p o l i c y   o r   g u i d a n c e   d o c u -
ments. the audit covered four out of the eight countries where 
s e c t o r   b u d g e t   s u p p o r t   p r o g r a m m e s   a r e   i m p l e m e n t e d   i n   t h e 
two sub -regions. Annex II gives a complete list of projec ts and 
pro gram mes au dited.

12.   D es p i te   s o m e   re co gn i s e d   wea k n e s s e s   i n   e d u c at i o n   s t at i s t i cs, 
in  o rde r to  rep o r t on the ac hieve me nt of  t arge ts  s et  out i n  f i-
nancing agreements the cour t has used the national statistics 
specified in those agreements, since no others were generally 
available. to analyse the evolution of figures over time Unesco 
statistics, which are prepared so as to allow comparisons, have 
been used. As regards the reliabilit y of all such data see para -
graphs 58 to 60, from which it will be evident that the figures 
sho ul d  b e viewed w ith  s om e c aut ion .

13.  

fo r   b o t h   G Bs  a n d   sBs,   t h e   d e v e l o p m e n t   p a r t n e r s   g i v e   b o t h 
o w n e r s h i p   a n d   re s p o n s i b i l i t y   fo r   t h e   m a n a g e m e n t   o f   i n p u t s 
a n d   a c t i v i t i e s   t o   t h e   g o v e r n m e n t s   a n d   f o c u s   t h e i r   o w n   a t -
tentio n  o n  res ult s.   cl o se  co operation   bet ween  dono r s  i s  al s o 
re q u i re d   a s   t h e y   s u p p o r t   t h e   s a m e   n a t i o n a l   s t r a t e g y   o r   p ro -
gra m m e   a n d   u s e   t h e   s a m e   s ys te m .   Acco rd i n g l y,   t h e   co m m i s -
sion must tr y to ensure that its contr ibutions are coordinated 
w i t h   t h e   c o n t r i b u t i o n s   o f   o t h e r   d o n o r s,   w h i c h   c a n   a l s o   h e l p 
reduce the transac tion costs for par tner countries. this implies 
a   l o s s   o f   v i s i b l e   co n n e c t i o n   b e t we e n   t h e   co m m i s s i o n   a i d   i n -
puts  and t he de vel o pm ent  res ult s. 

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11  special report no 11/2010 on 
the commission’s management 

of general budget support in 

Acp, latin American and Asian 

countries.

14.  

15.  

 the cour t recognises that the relationship bet ween aid inputs 
and results (outcomes) in the audited financing agreements is 
a complex one. this is discussed in fur ther detail in A nnex III. 
ne ve r t h e l e s s,   w h i l e   fo l l o w i n g   t h e   p r i n c i p l e s   o f   p a r t n e r s h i p, 
a l i g n m e n t   w i t h   n a t i o n a l   s t r a t e g i e s   a n d   d o n o r   c o o r d i n a t i o n , 
the commission continues to have sole responsibilit y for tak -
i n g   f i n a n c i n g   d e c i s i o n s   a n d   i s   a c c o u n t a b l e   t o   t h e   d i s c h a r g e 
aut ho r it y  fo r  th e  us e  o f  EU  funds.   i n   it s  audit  of  t he  EU  inter-
ventions in education implemented by means of sector budget 
suppor t the cour t assumes, as the commission does, that there 
i s   a n   a s s o c i at i o n   b e t we e n   t h e   E U’s   s u p p o r t   a n d   t h e   a c h i e ve -
ment  o f  t he   e ducat ion   go al s  alt h ough   th e  commiss ion  is  n ot 
exc l usi ve ly  re sp onsib l e for the res ul ts.

the audit follows on from the cour t’s special  repor t no  10/2008 
on Ec development assistance to health ser vices in sub -saha -
ran  Af r ic a. to   co mp l eme nt   t h at  repor t,   wh ich   d eal t  w it h  g en-
eral  b udg et  su p p or t  (G Bs) as a m ain  ai d de live r y  m et hod, t he 
a u d i t   wo r k   o n   e d u c a t i o n   h a s   fo c u s e d   m a i n l y   o n   t h e   s u p p o r t 
provide d  to  se c to r  p o l ic y  su ppor t   programm es   (s p sp),   t y pi c -
ally  p rovide d  t hrou gh  s ec to r  bud g et   suppor t   (sBs)   or   pool ed 
funding. At the same time the cour t has carried out an audit of 
the  co mmis sio n’s m anagem e nt of GBs in  A cp, latin Amer ican 
an d Asian countr ies 11.

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oBsErv Ations

17

hA v e  t h e   e u ’s   i n t e r v e n t i o n s   e f f e c t i v e ly 
co n t r i b u t e d  to   Ac h i e v i nG   t h e   i n t e n d e d 
i mPr o v e m e n t s   i n   b As i c   e d u c At i o n ? 

16.  

 the cour t assessed whether EU assistance led to all the intend-
ed  re su lt s  sp ec ified  in  f in ancial  agre e ment s  cove r i n g  budg e t 
s u p p o r t ,   p o o l   f u n d s   a n d   p r o j e c t s .   i t   m a d e   a   m o r e   d e t a i l e d 
e x a m i n a t i o n ,   i n c l u d i n g   a n   a n a l y s i s   o f   p ro g re s s   ove r   t i m e,   o f 
the results most direc tly relevant to the three following inter -
nat ion al ly agre ed p r ior it y goals on  e ducat ion : 

(a ) 

en su r ing  pr imar y  education  for  all  c hil d ren ;

12  mid-term evaluation of 
the EfA fast track initiative 

(cambridge Education, mokoro 

and oxford policy management) 

november 2009.

13  the indicators and targets 
used are in each case those from 

the last year for which data was 

(b) 

el imin ating  ge nder in equalitie s i n  ed uc at ion ;

available. 

(c) 

imp rov ing t he qu al it y  of  edu cat i on .

17.  

t h e   c o u r t   a u d i t e d   b o t h   s u p p o r t   t o   n a t i o n a l   e d u c a t i o n   p r o -
gram mes   an d  sp ecific  p ro jec t s.   programm e  suppor t  was   pro -
v i d e d   t h r o u g h   s e c t o r   b u d g e t   s u p p o r t   a n d   p o o l e d   f u n d i n g 
mechanisms, while the more traditional projec ts were funded 
direc t l y.  the  co mm issio n’s  suppor t  to  th e  fti  was  also  exam -
in ed in  the  l ig ht  of th e recent  evaluat ion  of  t hi s  in it iat ive 12.

O v e r a l l,  s i g n i f i c a n t  p r O g r e s s   h a s  b e e n  m a d e,  a l t h O u g h 
O n l y 45 %  O f  t h e  t a r g e t s  i n  t h e  a u d i t e d  f i n a n c i n g 
a g r e e m e n t s  w e r e   f u l l y  a c h i e v e d

18.  

 A s s e s s i n g   t h e   a u d i t e d   E U - f u n d e d   e d u c a t i o n   s u p p o r t   p r o -
gram mes  (b o t h sBs and p o ol ed f un ding ) the  cour t conc ludes 
that  45 %  o f t he res ults  ind icator s  conta in ed  i n th e fi na nci n g 
agreements fully achieved their targets 13, whilst a fur ther 30 % 
of  the  indicator s were mak ing p rogre ss.

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19.  

20.  

 As regards the projects audited it was found that in most cases 
t h e y   d e l i v e r e d   m o s t   o f   t h e   a c t i v i t i e s   a n d   r e s u l t s   fo r e s e e n 1 4. 
ho w e v e r,   t h e i r   i m p a c t   w a s   i n h e r e n t l y   l i m i t e d   d u e   t o   t h e i r 
s m a l l e r   s c a l e   c o m p a r e d   t o   t h e   s e c t o r   p r o g r a m m e s .   fu r t h e r -
more, in half of the audited projec ts the sustainability was not 
ensured, either because of lack of funding af ter the end of the 
projec ts or due to inadequate institutional arrangements 15. An 
examp l e is provided in Box  1. 

  A n n e x   I V   p r o v i d e s   a   l i s t   o f   t h e   p r o g r a m m e s   a n d   p r o j e c t s  
a u d i te d   w i t h   a   s u m m a r y   rat i n g   o f   t h e i r   re s u l t s.   A n n e x   V  p ro -
v i d e s   a n   o v e r v i e w   o f   t h e   d e t a i l e d   r e s u l t s   a c h i e v e d   b y   p r o -
gram me. the find ing s  fo r th e res ults  ach ieve d s peci fi c ally  re -
l a t e d   t o   e a c h   o f   t h e   t h r e e   p r i o r i t y   o b j e c t i v e s   a r e   p r e s e n t e d 
be low.

14  in some cases the results 
could not be clearly measured 

because the performance 

indicators applied were not 

sufficiently smArt (specific, 

measurable, attainable, relevant 

and time bound).

15  the issue of projects’ 
sustainability has been raised 

in several European court of 

Auditors’ special reports. see for 

instance the European court of 

Auditors special report  

no 4/2009 on the commission’s 

management of non-state actors’ 

involvement in Ec development 

cooperation, in particular 

paragraphs 63 to 68  

(http://eca.europa.eu/portal/pls/

portal/docs/1/2722293.pDf).

b o x   1

bu r k i nA   fAs o :  e x AmPl e   o f   Pr o j e c t  w i t h   Pr o b l e m s   o f 
s u s tAi nAb i l i t y

the support to basic education project contributed mainly to the construction and maintenance 
of schools and houses for teachers. however, the EU-funded school canteens visited during the 
audit were either not functioning at all or not able to provide food to the pupils on a daily basis. 
the audit also found that one EU-funded literacy centre was converted into a primary school 
because of its failure to attract people. in addition, one EU-funded workshop of teaching mater-
ial was converted into a vocational training centre because the activity did not receive financial 
and institutional support.

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21.  

22.  

23.  

e n s u r i n g  p r i m a r y  e d u c a t i O n   f O r  a l l  c h i l d r e n:  s O m e  O f  t h e 
i n t e n d e d  i m p r O v e m e n t s   a c h i e v e d  b u t  p r O g r e s s   h a s  g e n e r a l l y 
b e e n  t O O  s l O w 

 Ensuring primar y education for all children corresponds to the 
m D G   2   a n d   E fA   2   g o a l s.   i t   i s   a n   a m b i t i o u s   g o a l   a s   i t   i nvo l ve s 
n o t   o n l y   p r o v i d i n g   a c c e s s   t o   s c h o o l   f o r   a l l   c h i l d r e n   b u t   e n -
s u r i n g   t h at ,   o n ce   i n   t h e   s c h o o l,   t h e y   co m p l e te   a   f u l l   c yc l e   o f 
primar y education. there are many indicators used to measure 
i t s   p ro g re s s.   A m o n g   t h e m ,   t h e   m o s t   w i d e l y   u s e d   a re   t h e   n e t 
enrolment rate, the gross intake rate to the last grade (a prox y 
for t he co mp let ion  rate —  s ee G los sar y ) , an d  th e lite rac y  rate 
of  15- to  24-ye ar- old s,  wo men an d  me n.

16  survival rate to grade 5 is used 
as an indication of completion 

and of education quality (a 

high completion rate is difficult 

to maintain for several years 

without a certain level of quality 

in education). for this reason, 

this indicator is also included in 

Table 4. 

  Tab le  2  sh ows   by  co untr y  t he  ach ievem ent   o f  t he   g oa l  of   e n-
suring primar y education through a comparison of the intend-
ed  and  the   ac tu al   resu l ts  fo r  rele va nt   i nd icator s   as   s et  out   i n 
the  a ud ite d financin g agreement s. th e in dic ator s used in th e 
f i n a n c i n g   a g re e m e n t s   v a r y   c o n s i d e r a b l y   re f l e c t i n g   d i f fe re n t 
c o u n t r y   c i rc u m s t a n c e s   a n d   p r i o r i t i e s.   o ve r a l l,   l e s s   t h a n   h a l f 
(44 %) of the result targets in the agreements have been fully 
met  to  d ate, and p rogress  was ma de  in  a  fur th e r  3 7  % .

 t h e   e x p e c t e d   r e s u l t s   f o r   n e t   e n r o l m e n t   r a t e s   (nEr)   w e r e 
achieved for the financing agreements audited in Bangladesh, 
na m i b i a   a n d   ta n z a n i a   b u t   n o t   a c h i e ve d   i n   t h e   c a s e   o f   ne p a l. 
nErs were not among the expec ted results in the agreements 
audited in Bur k ina faso and n iger. While the expec ted results 
fo r   g r o s s   e n r o l m e n t   r a t e s   ( G Er)   h a v e   b e e n   a c h i e v e d   i n   B a n-
glade sh and Bur k ina fas o t his h as n ot be en  th e c ase in  ne pal 
an d n ig er. 

24.  

 t h e   m e a s u r e m e n t   o f   p r i m a r y   s c h o o l   c o m p l e t i o n   h a s   m a i n l y 
been done through one of t wo indicators: primar y completion 
rate   o r   s u r v i va l   rate   to   gra d e   5 1 6.   o u t   o f   t h e   f i ve   co u nt r i e s   i n 
whic h  th e  aud ited   fin anc ing  agre e ment s  in c lude d  t arg e ts   for 
the se  ind ic ato rs, o nl y  Bur k in a f aso ac hie ved it .

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25.  

 since literac y rates require a long timeframe to register chang -
e s   t h e   co m m i s s i o n   d i d   n o t   g e n e r a l l y   u s e   t h e   l i te r a c y   r a t e   o f 
15 -  to   24-year- o l ds   to  mo nitor   progres s.  for  th e  programmes 
e x a m i n e d ,   o n l y   i n   na m i b i a   a n d   ne p a l   w e r e   s u c h   i n d i c a t o r s 
est ab l ished, al th o ugh in namibia  dat a wa s n ot  yet  avai labl e.

tAb l e   2

in d i c Ato r s   r e l At e d  to  t h e   Go Al   o f   e n s u r i nG   Pr i mAr y 
e d u c At i o n   As   co n t Ai n e d   i n  t h e   fi nAn c i nG   AGr e e m e n t s   — 
co mPAr i s o n   b e t w e e n   e xPe c t e d   An d   Ac h i e v e d   r e s u lt s 1

Ensuring primary education 
(related to MDG 2)

New entrants in grade 1 with early 
childhood education 

Country, status of the programme, data and targets

Bangladesh 
(ongoing)

Burkina Faso 
(closed,  
final data)

Namibia  
(ongoing)

Nepal  
(ongoing, 
final data)

Niger  
(closed,  
final data)

Tanzania  
(ongoing)

Not achieved

Not achieved

Gross enrolment rate (GER)

Fully achieved

Fully achieved

Not achieved

Not achieved

Fully achieved

Not achieved

Fully achieved

Fully achieved

Not achieved

Fully achieved

Not achieved

Fully achieved

Not achieved

GER in rural areas

Net enrolment rate

Completion rate

Survival rate to grade 5

Transition rate from grade 5 to 6

Fully achieved

Net intake rate at grade 1

Reduction of cross-district  
disparities in NER (primary)

Stipend recipients (in millions)

Fully achieved

Disadvantaged children enrolled

Fully achieved

Dropout rates (primary)

Not achieved

Literacy rate 15+

Literacy rate 15–24

Literacy rate 6+

Not achieved

Not achieved

Not achieved

Fully achieved

Fully achieved

Not achieved

Not available

Not achieved

Not achieved

not available: target set but data not available.
1  the indicators have been selected from the financing agreements for the programmes audited on the basis of their relevance for 
the priority area. With only 19 % of the planned activities of the Ec support to education in liberia (EcsEl) project having been carried 

out, it is not yet meaningful to assess the impact of the project. none of the audited interventions in pakistan were linked to such 

indicators at the national level. see Annex V for details.

Sources: European commission and European court of Auditors.

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26.   A s   a   b a s i s   fo r   a s s e s s i n g   t h e   o v e r a l l   p r o g r e s s   t o w a r d s   e n s u r-
ing universal primar y education in the period 2000–08 for the 
audited finan cin g agreements 17, th e table in  A nn ex VI  shows, 
by   co u nt r y   e x a m i n e d,   t h e   p ro gre s s   u s i n g   n e t   e n ro l m e nt   rate 
and the completion rate 18. As can be seen from the table, most 
of   t he  co unt r ies  examined   have   re gis te re d  progres s   in   en rol-
ment s ince 2 00 0 b u t t he comple ti on of  a f ull c ycl e of  pr ima r y 
education remains an issue for all of them. Graph 1 for Burk ina 
faso illustrates the gap: whereas about 60 % of children are in 
sch oo l,  on ly  38  %  co mp lete  th e  pr ima r y   e ducat ion   c yc le. th e 
g a p   b e t we e n   t h e   e n ro l m e nt   a n d   co m p l e t i o n   ra te s   i l l u s t rate s 
the challenge of keeping the children in school once they en -
ro l.  th i s   g a p   i s   re l ate d   to   b o t h   f a c to r s   o u t s i d e   t h e   e d u c at i o n 
system (such as the pover ty situation of the families, children’s 
he al th   o r  mal nutr it io n)  and   insi de   f ac tor s   s uc h  as  bar r ie r s  to 
gender parity and poor quality and efficienc y in the education 
syste m,  resul t ing  in  high  re petiti on  and  dropout  rate s.

17  for the programmes still 
under implementation, 2008 

was the last year where data was 

available.

18  the proxy indicator to 
measure the completion rate 

is the gross intake rate to last 

grade of primary education (see 

Glossary).

Gr A Ph   1

P r oGr e s s i o n  to w Ar d s   Ac h i e v i nG   u n i v e r sAl   Pr i mAr y 
co mPl e t i o n   i n   bu r k i nA   fAs o

100 %

80 %

60 %

40 %

20 %

0 %

36,0

25,1

2000

100

60,1

38,0

45,3

31,1

2005

2008

2015

Net enrolment rate.  Primary.  Total
Primary completion rate, total (% of relevant age group)
Goal 2015

Dashed lines show possible continuation of current trend.
Source: Unesco institute for statistics.

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27.   A s   t h e   t a r g e t s   fo r   e n r o l m e n t   a n d   c o m p l e t i o n   i n   t h e   a u d i t e d 
f i n a n c i n g   a gre e m e nt s   t y p i c a l l y   t a k e   t h e i r   p o i nt   o f   d e p a r t u re 
i n   t h e   m D G s   o r   t h e   E fA   g o a l s,   t h e   re a l i s m   o f   t h e s e   g o a l s   h a s 
a   d i re c t   i m p a c t   o n   t h e   l i k e l i h o o d   o f   a c h i e v i n g   t h e   e x p e c t e d 
results. this is also reflected in the findings of this audit where 
most result targets related to the mDGs are not met.  requiring 
a l l   co u n t r i e s   to   h ave   1 0 0   %   p r i m a r y   s c h o o l   co m p l e t i o n   rate s 
b y   2 0 1 5   m e a n s   t h a t   a l l   c o u n t r i e s   s h o u l d   h a v e   a d m i t t e d   a l l 
6-ye ar- o l ds in  2 00 9 or 2 01 0.  th is is far  from bein g t he c ase in 
any  o f  the   cou ntr ies  in  s ub - s ah ara n  Afr ic a  and  south   Asia.  i n 
b r i e f,   t h e   m D G s   a n d   t h e   Ef A   g o a l s   a re   n o t   re a l i s t i c   fo r   m a ny 
of  the  wo r ld ’s p o ores t  cou ntr ies. 

28.  

the cour t also noted cases where the population growth ratio 
p u t s   a t   r i s k   t h e   p o s i t i ve   t re n d   fo r   e n ro l m e n t   r a t e s   a s   fo r   e x -
a m p l e   i n   B u r k i n a   fa s o,   n i g e r   a n d  ta n z a n i a .   D e s p i te   t h e   c h a l -
l e n g e s   t h a t   d e m o g r a p h i c   g ro w t h   p o s e s   t o   d e ve l o p m e n t   a n d 
to  edu c at io n  in  p ar t ic u l ar,   l ittle  e v id en ce   was   found   th at   th e 
com miss io n was addres s ing th is i ss ue. 

Gr A Ph   2

e v o lu t i o n   o f  t h e   n e r   i n   n Am i b iA   ( 2 00 0 – 08 )

100

89,6

89,0

100 %

95 %

88,8

90 %

85 %

80 %

2000

2005

2008

2015

Net enrolment rate.  Primary.  Total
Goal 2015

Dashed lines show possible continuation of current trend.
Source: Unesco institute for statistics.

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19  many donors have called 
for broadening the scope of 

fti, while maintaining the 

focus on universal primary 

education, to the whole of EfA 

and/or to the entire education 

sector. however, a decision 

has not been taken mainly due 

to the financial implications 

of adopting a whole sector 

approach.

20  Approximately 63 % of 
countries with available data 

have achieved gender parity at 

the primary level of education, 

compared with 37 % at 

secondary and less than 3 % 

at the tertiary level (Unesco 

institute for statistics, ‘Gender 

parity in education: not there 

yet’, march 2008).

29.  

30.  

31.  

 i t is an e xplicit  p ol ic y  that the EU  sh ould focu s it s s uppor t  on 
t h e   p o o r e s t   p a r t   o f   t h e   p o p u l a t i o n .   t h i s   i s   o f t e n   a   b i g   c h a l -
lenge in the case of suppor t to education programmes, encom-
pas sin g   b road  refor ms  and  m any   pr ior it i es,   w he re a s  proj ec t s 
o n   t h e   o t h e r   h a n d   c a n   b e   e xc l u s i v e l y   t a r g e t e d   t o   r e a c h   t h e 
p o o r e s t .   t h e   n e c e s s i t y   b u t   a l s o   t h e   c h a l l e n g e   o f   e x t e n d i n g 
o p p o r t u n i t i e s   t o   p o p u l a t i o n s   t h a t   a re   h a rd   t o   r e a c h   i s   m o r e 
a p p a r e n t   i n   c o u n t r i e s   w i t h   h i g h   nEr  r a t e s   ( B a n g l a d e s h ,   na -
mib ia  and tanz ania).  G ra p h  2  an d  Box   2  illustrate  the   cas e  of 
namibia where the nEr has been stagnating below 90 % since 
2 0 0 0   b e c a u s e   o f   i n s u f f i c i e n t   p ro - p o o r   fo c u s   i n   i t s   e d u c a t i o n 
policies and programmes. the box also shows a good example 
of  t he  p o tent ial  of p rojec ts  to provi de  e duc ati on  for  h ard -to -
reach  chil dren at  l oc al  l evel  ( Bang la de sh ) .

 the commission also contributes to the fti to help developing 
countries with credible education programmes but insufficient 
re s o u rce s,   to   a c h i e ve   p r i m a r y   e d u c at i o n   fo r   a l l   c h i l d re n   ( s e e 
a l s o   f o o t n o t e   8 ) .   ho w e v e r,   t h e   r e c e n t   e v a l u a t i o n   o f   t h e   f t i 
found that its overall added value at the global level has been 
con siderab ly  l ess  t han  exp ec ted.   Am ong   a   n um ber   of  cr it ical 
issu es   t he  rep o r t   refers   to  th e  li mi te d  contr i but ion   of   th e   fti 
to increasing access for all children to primar y school and that 
there is an inherent tension between the fti’s focus on primar y 
edu catio n and t he b ro ader Ef A goals 19.

g e n d e r  d i s p a r i t i e s:  s O m e  O f  t h e  i n t e n d e d  i m p r O v e m e n t s 
a c h i e v e d,  b u t  s i g n i f i c a n t  i n e q u a l i t i e s  p e r s i s t

 Ac h i e v i n g   u n i v e r s a l   p r i m a r y   e d u c a t i o n   i m p l i e s   t h a t   a l l   g i r l s 
an d b oys shou l d b e ab l e to  atten d s c h ool an d com plete a  full 
c yc l e o f p r imar y  educ atio n.  Elimi nat in g  g en d er  d is par it ie s by 
2005 and achieving gender equalit y in education by 2015 cor-
respond to the fif th E fA goal and to the education par t of the 
mDG 3, and cover the whole education system. Although gen -
der disparities tend to increase at higher levels of education 20, 
for t his audit  th e co ur t  has l imited  its asse ssment to pr i ma r y 
e d u c a t i o n   o n   w h i c h   m o s t   o f   t h e   E U   i n t e r ve n t i o n s   h ave   b e e n 
focu se d. 

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b o x   2

n Am i b iA : th e   ed u c At i o n   se c to r   P r oGr Am m e   d o e s   n ot 
s u f f i c i e n t ly   f o c u s   o n  t h e   Po o r e s t

the mDG 2 target for 2015 will be difficult to reach. Whilst namibia’s score, with enrolment rates ap-
proaching 90 %, is good compared with most other African countries, it has not increased in the last 
eight years. the difficulty is linked to the socioeconomic inequalities, and to education policies and 
programmes, including the EU education sector programme (Esp), that are insufficiently pro-poor to 
reach the most disadvantaged children (namely orphans and vulnerable children, children from the 
san minority and children living in remote areas). the current financing model under which schools 
depend on parental contributions to the school Development funds for such basic provisions as text-
books, materials, renovation and even teachers perpetuates inequalities and the issue has not been 
addressed adequately in the Esp. the Esp has given low priority to the Education Development  fund 
which is meant to compensate schools for enrolling children exempted from the school Development 
fund. the coverage of the feeding programme still remains to be extended to all schools in need. in 
addition to this, students have to pay for uniforms and examinations. All this affects heavily the poor 
areas where the number of students whose parents cannot afford to contribute to the school Develop-
ment fund is high. the main Esp achievement in this respect has been the approval of the orphans and 
vulnerable children policy, although it was not yet implemented at the date of the audit.

b AnGl Ad e s h :  th e   suP Po r t  to   no n -fo r mAl   P r i mAr y 
ed u c At i o n   Pr o j e c t   Gi v e s   Qu Al i t y   Pr i mAr y   e d u c At i o n   
to   hAr d - to - r eA c h   c h i l d r e n

Despite net enrolment rates approaching 90 %, it is unlikely that Bangladesh will reach the overall 
mDG 2 goal of full completion of primary education by 2015. there are still big regional variations and 
access to education for poor children is still significantly lower than for rich children. this EU-funded 
project supports non-formal primary education for difficult-to-reach children (e.g. those in urban slums 
and remote rural areas and children belonging to ethnic minorities). the three nGos implementing 
the project successfully opened and operated schools and thereby reached 330 000 most vulnerable 
children from poor households and ethnic minorities and provided them with a full cycle of primary 
education. the project has developed links with the formal primary education system, including part-
nerships with local education authorities and government primary schools in order to ensure the 
sustainability of the results achieved.

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25

32.   Table 3 shows by countr y and by education suppor t programme 
the   ac hieve ment  o f  resu l ts  relate d  to  th e   g oal  of   e limi n ati n g 
g e n d e r   d i s p a r i t i e s   i n   e d u c a t i o n   c o m p a r i n g   re l a t e d   o u t c o m e 
indicators with their intended targets. few indicators are used 
by the commission for this goal. for Bangladesh and namibia 
no indic ators were us ed at all,  re fl ec ti n g t h e f ac t  th e se  coun -
tries had already achieved gender parity (see paragraph 33). in 
three   countr ies   the  resu lt s  were  not ,   or   mos tl y  not ,  ach ie ved 
w h i l e   o n l y   i n   B u r k i n a   fa s o   we re   t h e   t a rg e t s   o f   t h e   f i n a n c i n g 
agreem ent re ached.

tAb l e   3

in d i c Ato r s   r e l At e d  to  t h e   Go Al   o f   e l i m i nA t i nG   Ge n d e r 
d i sPAr i t i e s   i n   e d u c At i o n   As   co n t Ai n e d   i n  t h e   fi nAn c i nG  
AGr e e m e n t s   –   co mPAr i s o n   b e t w e e n   e xPe c t e d   An d   Ac h i e v e d 
r e s u lt s   ( see table 2, fo o tn ote   1 )

Eliminating gender disparity 
(related to MDG 3)

Gender parity grades 1 to 5

Gross enrolment rate (girls)

Gross intake rate at grade 1 
(girls)

Percentage of learning 
achievement at last grade of 
primary (girls)

Literacy rate 15–24 (women)

Literacy rate 6+ (girls)

Literacy gender parity index 
15+

Country, status of the programme, data and targets

Bangladesh 
(ongoing)

Burkina Faso 
(closed,  
final data)

Namibia  
(ongoing)

Fully achieved

Fully achieved

Niger (closed, 
final data)

Tanzania 
(ongoing)

Nepal  
(ongoing, 
final data)

Fully achieved

Not achieved

Not achieved

Not achieved

Not achieved

Not achieved

Sources: European commission and European court of Auditors.

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21  one interesting feature 
of namibia is that gender 

parity in education has also 

been achieved in secondary 

education. there are more girls 

in secondary education than 

boys, and girls tend to perform 

better than boys, with higher 

survival rates in education. 

moreover, young women are 

generally more literate than 

young men (except in the 

Kavango region). in fact, boys 

are currently the group at risk in 

terms of gender equality.

22  Attendance at some private 
schools was heavily weighted in 

favour of boys, whereas girls are 

only allowed by their families 

to attend public schools (which 

are perceived to provide lower 

quality education). this is more 

common in districts where 

the pupils have to travel from 

villages to urban private schools.

33.  

34.  

35.  

t h e   t a b l e   i n   A n n e x   V I I   s h o w s ,   b y   c o u n t r y   e x a m i n e d ,   t h e 
pro gress over th e p er iod 2000 –0 8  us in g  th e  g en de r  par i t y  i n -
d e x   fo r   n e t   e n r o l m e n t   r a t e ,   a n d   t h e   n e t   e n r o l m e n t   r a t e   a n d 
completion rate for girls. there has been a reduc tion of gender 
disparities since 2000 in all the countries, with three countries 
( B a n g l a d e s h ,   na m i b i a   a n d   ta n z a n i a )   h av i n g   re a c h e d   p a r i t y 2 1. 
pro gress  has b ee n s l ow  in  the res t es pec i all y in  Bur k i n a faso, 
n ig er and p ak ist an.

these averages, however, hide impor tant inequalities between 
g i r l s   f r o m   r u r a l   a n d   u r b a n   a r e a s ,   f r o m   p o o r   a n d   r i c h   h o u s e -
h o l d s,   a n d   f ro m   m a rgi n a l i s e d   a n d   a d va nt a g e d   gro u p s.   i n   t h e 
2 0   p o o r e s t   p r o v i n c e s   o f   B u r k i n a   fa s o,   w h i c h   a r e   e s p e c i a l l y 
targeted by the EU inter ventions, the differences in enrolment 
be t wee n  gir ls   and   b oys   h ave,   h owe ver,   in c re as ed   si n ce  2 0 0 1 . 
Al so   t he  femal e  dro p out   rate  in   r ural  areas   i s  h ig h er   t h an  for 
b oys.   i n   ne p a l,   t h e   f i n a l   e v a l u a t i o n   o f   t h e   b a s i c   a n d   p r i m a r y 
education programme in 2005 obser ved that the issue of lack 
o f   p a r i t y   i n   p r i v a t e   s c h o o l s   w a s   a   c o n c e r n 2 2.   A t   t h e   b e g i n -
n i n g   o f   2 0 1 0 ,   t h e   c o u r t ’s   a u d i t   o f   t h e   E U - f u n d e d   E d u c a t i o n 
fo r   A l l   p ro gra m m e   fo u n d   t h at   t h i s   p ro b l e m   re m a i n e d   l a rg e l y 
uns ol ved.

th e mo st  co mmo n ac tio ns  s uppor ted  by  th e E U inter venti ons 
i n c l u d e d   f i n a n c i a l   i n ce nt i ve s   to   e n a b l e   gi r l s   to   g o   to   s c h o o l, 
recruitment of female teachers, and separate latrines. in nepal 
the number of women teachers in public pr imar y schools was 
fo u n d   t o   b e   l o w   ( 3 4 , 5   % )   w h i c h   i s   r a t h e r   m o d e s t   w h e n   c o m -
pare d to t he rat io in p r ivate s ch ools  (5 5 , 7  % ),  wh ich  h ave  not 
b e n e f i te d   f ro m   t h e   E U - f u n d e d   E d u c a t i o n   fo r   A l l   p ro gr a m m e. 
Box  3 il l us trates t he chal len ges f aced by E U de ve lopme nt  as -
sistance in countries where gender equalit y is not sufficiently 
addressed in the national education programmes. i t also shows 
the   p ote nt ial  o f   p ro jec t s   to  prom ote  g e nd er   e quali t y   at  loca l 
level. 

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b o x   3

niGe r :  in s u f f i c i e n t   Pr o m ot i o n   o f   Ge n d e r   eQu Al i t y   i n 
e d u c At i o n

niger is off track for achieving universal primary education by 2015, among other reasons due to the 
persistence of deep gender disparities in access to primary school. the EU has supported the imple-
mentation of the pDDE (plan décennal de développement de l’éducation) by way of general (2003–08) 
and sector budget support (2006–08). however, the period was characterised by slow progress in 
reducing the gap between girls’ and boys’ access to school. for the academic year 2007/08 there was 
still a difference of 12 percentage points between the net enrolment rate of boys and girls. in addi-
tion, the indicators of access are not sufficiently disaggregated to reflect the disparities between girls 
and boys in rural areas, where 83 % of the population lives. furthermore, the institutional and socio-
cultural constraints that jeopardise girls’ access to education are not explicitly addressed in the pDDE. 
the persistence of barriers to gender equality results for example in a higher opportunity cost of their 
education where girls’ work is needed in the home, or in a poor and hostile school environment that 
does not guarantee their safety. moreover, even if some problems are correctly identified in the pDDE, 
a comprehensive gender approach with appropriate financing is lacking and the remedial action plans 
are considerably underfinanced: only 0,34 % of the pDDE ‘Access’ component for the period 2003–07 
was dedicated to the promotion of girls’ schooling. 

PAk i s t An :  G o o d   Pr Ac t i c e   i n   Pr o m ot i nG   Ge n d e r   eQu Al i t y   i n 
e d u c At i o n   —  t h e   no r t h e r n   P Ak i s t An   ed u c At i o n   P r oGr Am m e 

the main reason why pakistan is off track for achieving universal primary education by 2015 is the 
persistence of deep gender disparities. the EU has financed a programme with the objective of con-
tributing to the improvement of access, quality and sustainability of education, with a strong focus on 
increased gender equality in the northern areas and chitral. By the end of 2007 enrolment at partner 
schools had increased by 30 % in comparison with 2003 and girls represented 64 % of the total enrol-
ment in 2007. in comparison with the enrolment in 2003 this was an increase of 19 %. Another key 
outcome was that 3 785 students (94 % girls) were enabled to access secondary school in areas where 
there was no access for female education before this EU programme. the programme addressed the 
problems of disadvantaged female teachers by ensuring that 52 % of the trained teachers were female. 
they were also supported to pursue leadership roles in the schools ensuring a 35 % quota for women 
in management roles.

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23  in sub-saharan Africa 
there are also regional 

learning assessments (such 

as programme d’analyse 

des systèmes éducatifs de la 

confemen (pAsEc) for french-

speaking countries and the 

southern and Eastern Africa 

consortium for monitoring 

Educational Quality (sacmeq) 

for English-speaking countries) 

but their timeliness is also not 

optimal, results being assessed 

only every 10 years for some 

countries.

28

36.  

37.  

38.  

e d u c a t i O n  q u a l i t y :  f e w  O f  t h e  i n t e n d e d  i m p r O v e m e n t s 
a c h i e v e d 

 t h e   p u r p o s e   o f   e n s u r i n g   u n i v e r s a l   p r i m a r y   e d u c a t i o n   i s   n o t 
o n l y   to   h ave   a l l   c h i l d re n   i n   s c h o o l   a n d   to   h e l p   t h e m   to   co m -
plete a f ull  c yc le  of p r imar y an d e ntr y  i nto se con da r y  s ch ool, 
but to give them the basic k nowledge and sk ills they will need 
in  life.

 Unlike for enrolment and completion, there is no inter nation -
a l l y   a gre e d   s e t   o f   i n d i c a to r s   to   m o n i to r   re s u l t s   i n   i m p rov i n g 
qualit y. i t is widely recognised that monitoring qualit y should 
focus on learning achievements, i.e. what pupils have lear ned 
on reading, mathematics and science (see also paragraph 57). 
however, this depends on the availabilit y of national learning 
a s s e s s m e n t s,   w h i c h   a re   n o t   re g u l a r l y   c a r r i e d   o u t   a s   t h e y   a re 
cos tl y 23. 

 i n the absence of systematic learning assessments, the indica -
tors most used relate to the exam pass rates and to the inputs 
and outputs necessar y for qualit y : e.g. well-prepared teachers 
(n um b er  and  p rop or t ion   of  teach e r s  t ra in e d  an d  quali fi e d) ,  a 
good school environment (schools with toilets, drink ing water, 
e l e c t r i c i t y,   c a nte e n s,   l i b ra r i e s,   b o o k s,   co m p u te r   ro o m s ) ,   re a -
s o n a b l e   c l a s s   s i z e s   ( p u p i l : t e a c h e r   r a t i o s ) ,   t e x b o o k   p ro v i s i o n 
(texb o ok s p er p u p il ratio ),  etc.

39.   Ta b l e   4   s h o w s   b y   c o u n t r y   a n d   b y   e d u c a t i o n   s u p p o r t   p r o -
g r a m m e   t h e   a c h i e v e m e n t   o f   r e s u l t s   r e l a t e d   t o   t h e   i m p r o v e -
ment of qualit y in education comparing related outcome indi -
cators with their intended targets. i n this case also only a few 
o f   t h e m   f u l l y   a c h i e ve d   t h e   t a rg e t s   s p e c i f i e d   i n   t h e   f i n a n c i n g 
agreem ents.  the  t arg et  fo r p upil:tex tbooks  rat io  was reac h ed 
i n   B u r k i n a   fa s o   b u t   n o t   i n  ta n z a n i a .   fo r   o n e   o f   t h e   t wo   m o s t 
com mo nly  app lied  p rox y   in dicator s   for   qual it y,  pupil: te ac h e r 
ratio, two countries achieved the expected results (Bangladesh 
an d  namib ia) ,  w hil e  t wo  did  not  ( Bur k i na  faso  and  n epal) .  i n 
Bangladesh and nepal, the respec tive result targets for absen -
teeism of pupils and percentage of qualified teachers respec -
t i v e l y   w e r e   m e t .  t h e   o n l y   q u a l i t y   r e s u l t   t a r g e t   s e t   f o r   n i g e r 
wa s no t  met .

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40.  

 As ses sing  qualit y   throu gh  the   available   n ati on al  le ar n ing   as -
s e s s m e n t s   t h e   co u r t   h a s   fo u n d   l i t t l e   e v i d e n c e   t h a t   E U   i n t e r-
ventions led to improvements in the quality of education. only 
in Bangladesh had lear ning achievements improved and were 
regarded as satisfac tor y. i n most of the countries where learn-
ing assessments were available (Bur k ina faso, namibia,  nepal 
an d n ig er) t he sco res  were l ow. 

tAb l e   4

in d i c Ato r s   r e l At e d  to  t h e   Go Al   o f   i mPr o v i nG   Qu Al i t y   i n 
e d u c At i o n   As   co n t Ai n e d   i n  t h e   fi nAn c i nG   AGr e e m e n t s   — 
co mPAr i s o n   b e t w e e n   e xPe c t e d   An d   Ac h i e v e d   r e s u lt s   
( see table 2, foot note   1 )

Improving quality 
education

Percentage of learning 
achievement at last grade of 
primary

Country, status of the programme, data and targets

Bangladesh 
(ongoing)

Burkina Faso 
(closed,  
final data)

Namibia  
(ongoing)

Nepal  
(ongoing, 
final data)

Niger (closed, 
final data)

Tanzania 
(ongoing)

Not achieved

Fully achieved

Repetition rates (primary)

Not achieved

Survival rate to grade 5

Not available

Not achieved

Not achieved

Not achieved

Pupil:textbook ratio (primary)

Fully achieved

Pupil:teacher ratio (primary)

Fully achieved

Not achieved

Not achieved

Pupil:qualified teachers 
(primary)

Reduction cross-district 
disparities in pupil:teacher 
ratio (primary)

Percentage of teachers with 
qualification/training

Percentage of teachers with 
required certification

Percentage of pupils:desks

Not achieved

Fully achieved

Not achieved

Not achieved

Pupil absenteeism

Fully achieved

Sources: European commission and European court of Auditors.

Not achieved

Not achieved

Not achieved

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41.   Wh en ass ess ing  qu al it y  th ro ugh  t he  inpu t an d  out put  ind ic a-
t o r s   t h e   co u r t   a l s o   fo u n d   l i t t l e   e v i d e n c e   o f   s t e a d y   i m p ro ve -
m e n t s.   i n   p a r t i c u l a r,   s h o r t a g e   o f   t e a c h e r s   a n d   i n s u f f i c i e n t l y 
q u a l i f i e d   t e a c h e r s   w e r e   c o m m o n   i n   a l l   t h e   c o u n t r i e s   a u d i t -
e d   d e s p i t e   t h e   s u p p o r t   p ro v i d e d   t o   t h e   n a t i o n a l   p o l i c i e s   fo r 
te a c h e r   s u p p l y   a n d   t ra i n i n g   by   m o s t   o f   t h e   E U   i n te r ve n t i o n s 
e x a m i n e d .   fo r   e x a m p l e ,   i n   B a n g l a d e s h   s u b s t a n t i a l   p r o g r e s s 
w a s   b e i n g   m a d e   i n   a c h i e v i n g   q u a n t i t a t i v e   t a r g e t s   i n   t r a i n -
i n g   a c t i v i t i e s   i n   t h e   s e c o n d   p r i m a r y   e d u c a t i o n   d e ve l o p m e n t 
p ro gra m m e.   howe ve r,   t h e   i n s t i t u t i o n s   s u p p o r te d   by   t h e   p ro -
gram me  co nt inu e  to   have  a  limi ted   c a pacit y   ( lim ited   budg e t, 
lack of staff with relevant experience, inappropriate struc ture) 
a n d   t h e   i m p a c t   o f   t h e   t r a i n i n g   a p p e a r s   t o   b e   l i m i t e d   s i n c e 
t h e re   i s   l i t t l e   fo l l o w - u p   t o   s u p p o r t   t e a c h e r s   i n   t h e   d e ve l o p -
m e n t   o f   n e w   t e c h n i q u e s.  t h e re   h a s   a l s o   b e e n   l i t t l e   p ro g re s s 
in  the  p rovisio n of training ince ntive s to tea che r s  in  te r ms  of 
caree r p ro mo t ion or p ay  sc ale.

42.  

th e p rovision of  a go od - q ualit y ed uc ati on rem ain e d a mat ter 
of   gre at   concer n   amo ng   al l  the  st ake hol de r s  i n  t h e  countr ie s 
v i s i te d.   m o re ove r,   i t   i s   a   co m m o n   p e rce p t i o n   t h at   d u e   to   t h e 
p r i o r i t y   g i v e n   t o   t h e   m D G s ,   g o v e r n m e n t s   a n d   d e v e l o p m e n t 
p a r t n e r s   h a v e   b e e n   m o r e   f o c u s e d   o n   i n c r e a s i n g   e n r o l m e n t 
t h a n   o n   t h e   i m p r o v e m e n t   o f   e d u c a t i o n   q u a l i t y.   B ox   4   i l l u s -
t r a t e s   i n   p r a c t i c a l   t e r m s   w h i c h   a r e   t h e   m o s t   c o m m o n   i s s u e s 
rel ate d  to   t he  lac k  o f  q ual it y.   i t  takes  as  an  exam ple  th e  c ase 
of  tanz ania,  t he cou nt r y w it h the  mo st  s ign if ic a nt i n c re ase  in 
enro l ment amo ng t he co untr ies  con si de re d i n  th i s a udi t.

b o x   4

tAn z An iA :  An   e x AmPl e   o f  t h e   Qu e s t   f o r   Qu Al i t y

in tanzania, available indicators do not demonstrate improvements in all measures of the quality of edu-
cation during the implementation of the support to education sector reform programme. the primary 
completion rate has decreased during the last two years, while primary dropout rates have remained 
unchanged during the last decade. there are not enough qualified teachers, teachers’ salaries have 
not increased in recent years and their work environment is challenging in numerous ways, including 
with respect to housing, transportation and the physical collection of salaries. there are insufficient 
books and generally a lack of other learning materials. the primary school pupil:textbook ratio of 3:1 
for basic education was in 2008 still the same as of 2003. the capitation grant to be paid per pupil is 
only 3,6 Us dollars per year.

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43.  

t h e   f t i  h a s   a l s o   r e c o g n i s e d   t h e   i m p o r t a n c e   o f   a d d r e s s i n g 
l e a r n i n g   o u t c o m e s   a n d   t h e   q u a l i t y   o f   e d u c a t i o n   i n   t h e   c u r-
rent situation where access is expanding and has encouraged 
p a r t n e r   co u nt r i e s   to   m e a s u re   s t u d e nt   l e a r n i n g   a n d   t h e   q u a l-
it y  of   teach ing.   i n  20 09,   it   adopted   t wo  spe cific   i n di cato r s  o f 
learning outcomes 24. track ing reading progress has been done 
over  20 ft i co u ntr ies sh ow ing ove ral l mod es t  per for man ce.

24  the proportion of students 
who, after two years of 

schooling, demonstrate 

sufficient reading fluency, and 

the proportion of students able 

to read with comprehension by 

the end of primary school.

d o e s  t h e   co m m i s s i o n   mAnAGe   i t s 
i n t e r v e n t i o n s   i n   e d u c At i o n  w e l l ? 

44.  

th e   a u d i t   a s s e s s e d   to   w h at   e x te nt   s h o r tco m i n g s   i n   t h e   co m -
m i s s i o n’s   m a n a g e m e n t   c a n   e x p l a i n   t h e   s h o r t c o m i n g s   i n   t h e 
r e s u l t s   o b s e r v e d .   i t   c o v e r e d   b o t h   t h e   p r o g r a m m i n g   a n d   t h e 
implementation phases. for programming, the cour t assessed 
if t he c o mm issio n in  a ccordan ce w ith  its  own  g uide li n es 25:

25  these include the 
programming guidelines for 

education (January 2006), 

guidelines to support to sector 

programmes (July 2007) and 

‘Guidelines on the programming, 

design and management 

of general budget support’ 

(January 2007).

 Ū

 Ū

f o c u s e d   i t s   i n t e r v e n t i o n s   o n   t h r e e   o f   t h e   k e y   p r i o r i t i e s 
i d e nt i f i e d   i n   t h e   Eu ro p e a n   co n s e n s u s :   p r i m a r y   e d u c at i o n , 
g end er and ed ucat io n q ualit y ;

duly assessed the appropriateness of choosing budget sup -
p o r t  o r alte r nat ive aid deliver y  m eth ods.

fo r  im pl e ment at i on ,  the  co ur t  asse ssed  if  th e  commiss ion   in 
accord ance w ith  it s ow n g uideli ne s:

 Ū

had  adequ ate info r matio n for  mo nito r ing  pu r pos es ;

 Ū

 Ū

was ac tively monitoring education outcomes, while paying 
d u e   a t t e n t i o n   t o   i t s   i n t e r n a t i o n a l   c o m m i t m e n t s   t o   d o n o r 
co o rdinatio n an d har mon isation;

e n s u r e d   t h a t   d e l e g a t i o n s   h a d   s u f f i c i e n t   e x p e r t i s e   t o   e n -
sure effec tive monitor ing and maintain sec tor dialogue on 
ed uc at ion;

 Ū

p rovid ed  ad equ ate s up p or t to  c apac i t y  de velo pment .

the audit also considered to what ex tent non- compliance with 
gu idel ines was  j us tified.

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w h e r e  sbs  w a s  t h e  a i d  d e l i v e r y  m e t h O d   t h i s  c h O i c e 
g e n e r a l l y  c O n f O r m e d  w i t h  t h e c O m m i s s i O n’s  g u i d e l i n e s

45.  

i n vie w of  t he imp or tance in  th e program mi ng  proce ss  of  t h e 
co m m i s s i o n’s   g u i d e l i n e s,   t h e   co u r t   e x a m i n e d   h ow   we l l   t h e y 
we re fol lowed and  w hethe r th ey  we re  he lpf ul.

26  pEfA impact study — final 
report, volume ii — country 

impact notes, June 2008.

46.   W h e re   e d u c a t i o n   w a s   a   fo c a l   s e c t o r   t h e   c h o i c e   o f   sBs  a s   a i d 
del iver y  me tho d  h ad  generally  be en   m ade   in   f ull  accordan ce 
with the education programming guidelines. this included the 
eligib il it y c r ite r ia for b udget  suppor t .

47.  

48.  

for the EU suppor t to education in pak istan’s nor th-West  fron-
tier  prov ince,  however,  t he  c hoice   of  sBs  for   the  cur rent   pro -
gram ming   p er io d  was   not  in  lin e  wi th   th e  g ui de li ne s,   s in ce   a 
g ove r n m e nt- ow n e d   e d u c at i o n   s e c to r   p o l i c y   wa s   n o t   i n   p l a ce 
at  the  time  the  finan cin g agreeme nt  was s ign e d a nd  t hus  t he 
eligib il it y c r ite r ia were not met .

fo r   ta n z a n i a ,   t h e   c o u r t   e x a m i n e d   t h e   c o m m i s s i o n’s   a s s e s s -
m e n t s   o f   t h e   c re d i b i l i t y   o f   t h e   p u b l i c   f i n a n c i a l   m a n a g e m e n t 
reform programme that suppor ted the financing decisions for 
budget suppor t in the previous and cur rent programming pe -
r iod. the limited gover nment ownership and slow progress of 
the public financial management reform programme highlight-
ed  in   t he  2008  pEf A   imp ac t   s tudy 26  and   t he ‘count r y   s trate gy 
paper 2008–13’, call into question the clar it y and consistenc y 
of  the  as sessme nt c r iter ia applie d by  t he  c ommiss ion .

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49.  

50.  

51.  

t h e c O m m i s s i O n  d i d  n O t  f u l l y  c O n s i d e r  t h e  a d v a n t a g e s  O f 
t h e  m e a s u r e s  f O r  m i t i g a t i n g  f i d u c i a r y  r i s k s  s u c h  a s  t h O s e 
u s e d  i n  p O O l e d  f u n d i n g

 th e   co m m i s s i o n’s   p ro gra m m i n g   g u i d e l i n e s   i n d i c ate d   ce r t a i n 
d i s a d v a n t a g e s   o f   p o o l e d   f u n d i n g   a n d   n o t e d   t h a t   t h e   c o m -
miss ion  wou l d  p re fe r   to   l au n c h   an  s Bs   operation  rat he r  th an 
j o i n i n g   a   p o o l e d   f u n d 2 7.   A c c o r d i n g l y,   e xc e p t   i n   B a n g l a d e s h , 
t h e   c o m m i s s i o n   d i d   n o t   p a r t i c i p a t e   i n   p o o l e d   f u n d i n g   a r -
rang em ent s   e ven  in  th os e  audite d  countr i e s  wh e re  oth e r   de -
v e l o p m e n t   p a r t n e r s   w e r e   u s i n g   i t   f o r   s e c t o r   p o l i c y   s u p p o r t 
pro gram mes.  on t his  issu e, however,  the  guid eli ne s we re  too 
sweep ing   a s  the   co mmis sio n  the reby  depr ived   itse lf  in  prac -
tice of some potential advantages, including measures aimed 
at   mit ig ating   fiduciar y   r isk s.  th is  is  espec ially  relevant  in  t he 
e d u c a t i o n   s e c t o r   a n d   i n   c o u n t r i e s   w h e re   t h e re   i s   a   h i g h   r i s k 
of  misu se  of f un ds 28.

safeguards against misuse of funds are routinely applied when 
t h e   d o n o r s   wo r k   to g e t h e r   u s i n g   p o o l e d   f u n d i n g   p ro ce d u re s. 
t h e y   i n c l u d e   p r i o r   f i d u c i a r y   r i s k   a s s e s s m e n t s   o f   t h e   s e c t o r 
c o n c e r n e d ,   a n d   d i s b u r s e m e n t s   b a s e d   o n   a u d i t e d   f i n a n c i a l 
s t a t e m e n t s .   A n   e x a m p l e   o f   a n   e f f e c t i v e   s a f e g u a r d   m e a s u r e 
c a n   b e   fo u n d   i n   n i g e r,   w h e re   a n   a u d i t   c o m m i s s i o n e d   b y   t h e 
poo l ed  fu nd  par tners   in  20 06   was   able   to  d ete c t   a  si x  m ill ion 
euro   f rau d  l ink ed  direc tl y   to   th e  im ple ment ati on   of  th e  ‘p lan 
décennal de développement de l ’éducation’. As a result of the 
subsequent investigation and trial a former minister of educa -
tio n was  convic ted.

e d u c a t i O n   t a r g e t s  a n d  i n d i c a t O r s  a r e   l e s s  c O m p r e h e n s i v e 
u n d e r gbs

 th e  ed ucat ion  s ec to r  as p ec ts  in  t h e  G Bs  program me s  are   ad -
d re s s e d   t h ro u g h   t h e   i n c l u s i o n   o f   p e r fo r m a n ce   i n d i c a to r s   fo r 
w h i c h   t a r g e t s   a r e   s e t   a n d   l i n k e d   t o   v a r i a b l e   G Bs  t r a n c h e s . 
ho w e v e r,   t h e   n u m b e r   o f   i n d i c a t o r s   v a r i e s   c o n s i d e r a b l y   a n d 
t h e r e   a r e   t y p i c a l l y   s i g n i f i c a n t l y   f e w e r   i n d i c a t o r s   f o r   e d u c a-
tion included in the GBs financing agreements (typically three 
t o   f o u r  i n d i c a t o r s )   c o m p a r e d   t o   sBs  a g r e e m e n t s .   m o r e o v e r, 
GBs conditions nor mally address progress on overall national 
s t rate gi e s   ( e. g.  p ove r t y   s t rate gi e s )   rat h e r   t h a n   s e c to r   p o l i c y. 
B e c a u s e   o f   t h i s   a n d   t h e   l i m i t e d   n u m b e r   o f   i n d i c a t o r s ,   G B s 
dial og u e o n edu cat ion  is  l ess inte n si ve.

27  in the programming guidelines 
for country strategy papers — 

Education — detailed version — 

January 2006, the following is said 

about pooled or basket funding 

as a possible support mechanism: 

‘pooled or basket funding is in 

principle also a possibility for the 

Ec’s support. however, pooled 

funding is often a very complex 

and cumbersome process, and 

commission procedures may not 

accommodate it. furthermore, 

where pooled funding is possible, 

the conditions are usually right for 

sBs. At the end of the day, pooled 

funding is more adapted to donors 

that have not yet moved to budget 

support (often as a transition to full-

fledged budget support) than to 

the Ec. therefore, the Ec will prefer 

to launch an sBs operation rather 

than joining a pooled or basket 

fund.’

28  in several of the audited 
countries the court noted 

numerous cases of misuse of 

government resources. for 

example, a public expenditure 

tracking survey (pEts) carried out 

in tanzania in 2009 showed that 

13 % of primary school teachers 

on average were not actually 

working at the school where 

they were on the official payroll 

(teacher absenteeism and ‘ghost’ 

teachers). the problem of teachers’ 

absenteeism was observed in 

several other countries, including 

in liberia where an audit of the 

ministry of Education observed 

a number of fundamental 

governance problems, including 

irregularities in payroll.

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52.  

53.  

54.  

 the cour t ’s audit also included two ninth EDf GBs programmes 
i n   B u r k i n a   fa s o   a n d   n i g e r   w h i c h   b o t h   h a d   a   m o r e   f o c u s e d 
e d u c a t i o n   s e c t o r   c o m p o n e n t   t h a n   i n   t h e   co m m i s s i o n’s   t y p i -
c a l   G B s   p ro gra m m e s.  th i s   i n c l u d e d   t h e   u s e   o f   m o re   d e t a i l e d 
con ditio ns  fo r  mon ito r ing  an d  gi vi n g  i n cent ive s  for   progre ss 
i n   t h e   e d u c at i o n   s e c to r.   h owe ve r,   d e s p i te   t h e   a d va nt a g e s   o f 
this greater sec toral focus, the commission rever ted to its tra -
ditio nal  ap p roach  to  G Bs p rogram mes  un de r  th e  1 0 t h E Df .

29  it is stated that ‘the (fti) 
results have been disappointing. 

When assessed against the scale 

of the financing gap, the fti has 

failed to mobilise resources on 

the scale required. fundamental 

reforms are needed’ (summary, 

p. 35).

t h e   c o u r t   r e c o g n i s e s   t h a t   w h e r e   p a r t n e r   g o v e r n m e n t s   g i v e 
p r i o r i t y   t o   e d u c a t i o n   s p e n d i n g ,   a n d   h a v e   s o u n d   e d u c a t i o n 
p o l i c i e s   a n d   r e l a t e d   p fm  s y s t e m s ,   G Bs  h a s   t h e   p o t e n t i a l   t o 
m a k e   a   u s e f u l   co nt r i b u t i o n   to   s u p p o r t i n g   t h e   e d u c at i o n   s e c -
tor. however, the  commission has not clear ly defined to what 
ex tent the use of GBs differs from the role of education sec tor 
budg et  su p por t p ro gramm es (s ee  paragra ph 5 1 ).

t h e efa f a s t t r a c k i n i t i a t i v e (fti)  h a s  n O t  m a d e  t h e   
e x p e c t e d  c O n t r i b u t i O n  t O  c l O s i n g  t h e  g l O b a l  f u n d i n g  g a p 

since   o ne  o f  t he  o b jec t ives  of   t he   fti  is  to  help  ens ure  f un d -
ing for beneficiar y countries committed to EfA goals the cour t 
a l s o   re v i e w e d   t h e   re c e n t   e v a l u a t i o n   o f   t h e   f t i  t o   a s s e s s   t h e 
ex tent to  w hic h it had contr ibute d.  Wh il e i mpor ta nt  fi na nc i al 
contr ib ut ion s from  t he f ti were provided  to in dividual co un -
tr ies the evaluation concluded that ‘global evidence does not 
s u g g e s t   t h a t   i t   h a s   h a d   a   g r e a t   p o s i t i v e   e f f e c t   o n   t h e   l e v e l 
o f   e x t e r n a l   a i d   o r   d o m e s t i c   f i n a n c i n g   fo r   e d u c a t i o n   o r   b a s i c 
edu cation as envis aged ’. this  assessment is shared by the E FA 
global monitoring repor t 2010 29 (concerning the global funding 
gap, se e als o p aragrap h  2) . 

55.  

 A s   r e g a r d s   e d u c a t i o n’s   s h a r e   o f   n a t i o n a l   b u d g e t s   g e n e r a l l y, 
the   f ti   se ts   an  indicative  target  of  2 0   %   of   tot al  g over n me nt 
e x p e n d i t u r e   a l l o c a t e d   t o   e d u c a t i o n .   o f   t h e   e i g h t   c o u n t r i e s 
c o v e r e d   b y   t h e   a u d i t ,   o n l y   t w o   ( B u r k i n a   fa s o   a n d   n a m i b i a ) 
s p e n t   2 0   %   o r   m o re   o f   t h e   t o t a l   b u d g e t   o n   e d u c a t i o n   i n   t h e 
l a s t   f i n a n c i a l   y e a r,   w h i l e   i n   t w o   t h e   g o v e r n m e n t   s p e n t   l e s s 
than  12 % (p ak ist an  and lib er ia) .

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i n d i c a t O r s  u s e d  b y  t h e c O m m i s s i O n  h a v e  a n  a p p r O p r i a t e 
f O c u s  O n  t h e mdg s … 

56.  

the commission’s analysis of the education sec tors in prepara-
t i o n   o f   t h e   co u nt r y   s t rate g y   p a p e r s   fo r   2 0 0 7 / 0 8   a n d   2 0 1 2 / 1 3 
( fo r   t h e   Dc i/ E Df  re s p e c t i ve l y )   w a s   g e n e r a l l y   c o m p re h e n s i ve 
a n d   d u l y   re f l e c t e d   t h e   co m m i s s i o n’s   p o l i c y   c o m m i t m e n t s   t o 
s u p p o r t i n g   a c h i e ve m e n t   o f   t h e   mD G s.   th e   p r i o r i t y   o b j e c t i ve 
of   u nive rsal   p r imar y   e du c at ion   an d  gender   equa lit y  was  also 
largely reflec ted in the choice of per formance indicators used 
t o   m e a s u r e   a n d   a s s e s s   r e s u l t s   i n   t h e   f i n a n c i n g   a g r e e m e n t s 
audited.   i ndic ator s  b ased  on   mD Gs,  h owever,   are  n ot  eq ually 
realistic for all countries – par ticularly the poorest – the mDGs 
be ing   bo t h  chal l enging  in  n ature  a nd   by   de f in it ion   t he   s ame 
for al l.

…,  h O w e v e r,  i n s u f f i c i e n t  a t t e n t i O n  h a s  b e e n  p a i d  t O 
i n d i c a t O r s  O f  t h e  q u a l i t y  O f  e d u c a t i O n 

57.  

i t   i s   d i f f i c u l t   t o   m e a s u r e   e d u c a t i o n   q u a l i t y   i n   a   r e l i a b l e   a n d 
c o n s i s t e n t   w ay   i n   t h e   t wo   re g i o n s   c o ve re d   b y   t h e   a u d i t   ( s e e 
also paragraphs 37 to 38). Although a number of prox y indica-
tors are available, the financing agreements audited included 
o n l y   a   fe w   s u c h   i n d i c a t o r s   a s   Ta b l e   4   s h ow s.   h e n c e   t h e y   d i d 
n o t   h e l p   p r o m o t e   t h e   n e e d   f o r   e d u c a t i o n   q u a l i t y   t o   b e   a d -
dres sed e ffe c t ivel y. 

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e d u c a t i O n   m a n a g e m e n t  i n f O r m a t i O n  s y s t e m s  t h a t   t h e   
c O m m i s s i O n  h a s  d e c i d e d  t O  r e l y   O n  d O  n O t  a l w a y s  p r O v i d e 
s u f f i c i e n t,  r e l i a b l e  a n d  t i m e l y  i n f O r m a t i O n 

58.  

th e   e d u c a t i o n   i n d i c ato r s   u s e d   by   t h e   co m m i s s i o n   a n d   o t h e r 
deve lo p ment par t ners  to measure t he  ac h ie vem ent of  t h e in -
t e n d e d   r e s u l t s   a r e   b a s e d   o n   t h e   p a r t n e r   g o v e r n m e n t s’  e d u-
c a t i o n   s t a t i s t i c s   s y s t e m s.   i t   i s   t h e r e fo r e   e s s e n t i a l   t h a t   t h e s e 
systems are able to provide reliable statistics. i n addition, the 
p a r t n e r   g o v e r n m e n t s   s h o u l d   a l s o   p r o d u c e   p e r i o d i c   r e p o r t s 
to   a l l ow   t h e   co m m i s s i o n   a n d   o t h e r   d e ve l o p m e nt   p a r t n e r s   to 
m e a s u re   p ro g re s s   o n   t h e   s u p p o r t e d   e d u c a t i o n   p ro g r a m m e s, 
in cl ud in g o utco me indicator s. 

 b o x  5

nePAl :  re l iAb i l i t y   o f   s t At i s t i c s

Although the education management information system is considered by the development partners 
to be robust, there is concern about the quality and reliability of data underlying the statistics. s ome 
evaluations reported evidence of deficiencies in checking the accuracy of school data, and systemic 
incentives for the schools to over-report attendance (as the financing of schools is pupil-based). schools 
also reported on registered pupils and not on the actual attendance. furthermore, household surveys 
reported lower participation of children in the schools. the extent of these problems is not known, 
and the development partners commissioned three technical reviews of school education, carried 
out in 2005 and 2006. they included a survey of 1 000 randomly selected schools in 20 sampled dis-
tricts. in general, the figures presented in these reviews were in line with the official ones. however, 
there were significant differences concerning the gross enrolment rate at primary level (130 instead 
of 144 officially) and the percentage of girls and Dalits 30 receiving scholarships (respectively 33 % and 
65 % instead of 53 % and 81 % officially). the development partners pointed to a need for more cross-
checking and triangulation of data and they envisaged the possibility of performing regular sample 
checks in the districts. 

there are no long series of independent statistics provided by the Unesco institute for statistics con -
cerning the net enrolment and completion rate, possibly because of lack of reliable population data 
almost 10 years after the last census took place.

30  the lowest caste in nepal.

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59.  

t h e   co u r t   fo u n d   i n   f i ve   o u t   o f   e i g h t   c a s e s   t h a t   p a r t n e r   g o v-
ernments’ education statistics systems provide data regularly. 
howe ver,  fo r  Bang l ad esh,   liber ia  an d  pak ista n,  stat is tic s  suf-
f e r   f r o m   u n a v a i l a b i l i t y   o f   d a t a ,   d u e   t o   l o w   c a p a c i t y   o f   d a t a 
collec ting and processing institutions 31. the cour t also found 
t h a t   i n   m o s t   o f   t h e   a u d i t e d   c o u n t r i e s,   t h e   co m m i s s i o n   d o e s 
n o t   a l w a y s   h a v e   s u f f i c i e n t ,   r e l i a b l e   a n d   t i m e l y   g o v e r n m e n t 
rep or t s availab le to mo nitor  educ ati on  outcome s.

60.   A s   r e g a r d s   t h e   q u a l i t y   o f   s t a t i s t i c s ,   t h e   c o u r t   n o t e d   t h a t   i n 
most of the countries examined, the commission has suppor t-
ed ac t ivities to imp rove t he qua lit y  of off ic i al st ati st ic s 32. th e 
cou r t  fo und that this  s up p o r t has  cont r ibuted to s tren g th en -
ing the education management information systems although 
so me commo n sh or tcomings pe r si st :

(a ) 

t h e   r e l i a b i l i t y   o f   c e n s u s - b a s e d   s t a t i s t i c s   ( e . g.   n e t   e n r o l-
m e n t   r a t e s   ( n E r s ) )   i s   a   g e n e r a l   c o n c e r n   i n   s u b - s a h a r a n 
Af r ic a and so u th  Asia 33;

(b) 

inco nsis tenc ie s  b et ween  adm inis trat ive  dat a  t h at  s c hool s 
r e p o r t e d   t o   t h e   m i n i s t r i e s   o f   e d u c a t i o n   a n d   d a t a   f r o m 
ho us eho l d sur veys, us ually  obtai ne d th rough  parental  re -
p o r t ing  on w heth er th eir c hildre n  at te n d s c ho ol 34;

(c) 

i n s u f f i c i e n t   d i s a g g re g a t e d   s t a t i s t i c s   a n d   a n a l y s i s   to   c a p -
ture qualit y and equit y issues (e.g. on access and achieve -
m e nt   l e ve l s   o f   l e a r n e r s   f ro m   l ow- i n co m e   h o u s e h o l d s   a n d 
fro m  disadvantaged groups ).

31  these countries receive 
support from the commission 

and other development partners 

to improve their statistics. 

32  in Bangladesh the support 
was provided by the World Bank.

33  According to the EFA global 
monitoring report 2010, the 

number of children from a 

relevant age group who are out 

of primary school is an ‘inexact 

science’. Administrative data 

that schools report to ministries 

of education are an important 

resource and national reporting 

systems are considered to be 

increasingly effective. however, 

uncertainties over demographic 

profiles (and hence the number 

of children in each age group) 

can cloud the issue.

34  for 29 countries in sub-
saharan Africa and south and 

West Asia examined in the EFA 

global monitoring report 2010, 

household surveys show around 

50 % fewer children in school — 

22 million in total — than 

administrative data.

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d O n O r  c O O r d i n a t i O n  h a s  g e n e r a l l y  i m p r O v e d   b u t  e n t a i l s 
s O m e  c O m p r O m i s e s

61.   D el e gat ions’ coo p erat ion and  coo rdin ati on  wi th  par tn er  g ov-
e r n m e n t s   a n d   o t h e r   d e ve l o p m e n t   p a r t n e r s   i n   t h e   e d u c a t i o n 
sec tor, following the commitments made under the paris Dec-
laration, was generally deemed appropr iate. however, in Bur -
k ina faso in the ninth EDf programme, it proved more difficult 
b e c a u s e   t h e   co m m i s s i o n   w a s   t h e   o n l y   d e ve l o p m e n t   p a r t n e r 
to us e bu dge t  sup p o r t w hereas t he  oth e r s contr ibute d to th e 
education sector through a pool fund. such coordination prop -
erly necessitates a degree of compromise, but the cour t noted 
some cases where the commission’s management or priorities 
we re mo re ser iou sl y affec ted:

(a ) 

i n   na m i b i a ,   t h e   o r i gi n a l   E U - f u n d e d   e d u c at i o n   s e c to r   p ro -
gramm e was to t all y  revis ed.  th is wa s as  a con sequence of 
a   c o m p l e t e   r e v i e w   o f   t h e   s e c t o r   c a r r i e d   o u t   b y   t h e   g o v -
er nme nt   w it h  t he  ass is tance  of  th e  Wor l d  B ank ,  wi th   on ly 
limited input from the commission and other development 
p ar tn ers.  the  p ro gramme  n ow  co - fin an ces   th e  fi r s t  phas e 
o f a  nat io nal ed uc atio n program me  t hat  cove r s th e  wh ole 
e d u c a t i o n   s e c t o r   a n d   p a y s   l i m i t e d   a t t e n t i o n   t o   p r i m a r y 
ed uc at ion and to mDG an d Ef A goals;

(b) 

in nepal, the  commission could not fully introduce tranche 
re l e a s e   b a s e d   o n   re s u l t s   i n d i c ato r s   a s   t h e   o t h e r   d e ve l o p-
me nt  p ar t ners do  no t us e  th is  m e c ha n ism  an d  we re  reluc -
t ant   to   intro duce  changes  to  t he   j oi nt  fi n an ci ng   a r rang e -
me nt s  wit h t he gover nment;

(c) 

i n   pa k i s t a n ,   t h e   c o m m i s s i o n   a i m e d   a t   s u p p o r t i n g   w i t h   a 
p ro j e c t   t h e   e d u c at i o n   s e c to r   i n   s i n d h   p rov i n ce.   h owe ve r, 
i t   wa s   a s k e d   by   t h e   g ove r n m e nt   to   a l i gn   i t s   s u p p o r t   w i t h 
t h a t   o f   t h e   Wo r l d   B a n k   t h r o u g h   s B s .   A s   a   r e s u l t ,   t h e   r e -
sults matrix of the financing agreement does not follow the 
g uide l in es for edu cat ion in ter ms  of s uf f ic ie nt o ut put  an d 
o u t co m e   i n d i c a to r s   co n c e r n i n g   a c c e s s   t o   p r i m a r y   e d u c a-
t i o n .  th i s   i s   d u e   to   t h e   f a c t   t h at   t h e  Wo r l d   B a n k   d o e s   n o t 
follow the same approach as the EU. A new, revised matr ix 
c o n t a i n s   m o re   i n d i c a t o r s   b u t   t h e   n u m b e r   o f   o u t c o m e   i n-
dic ato rs is st ill  l im ited.

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35  preliminary results of a 
commission survey that 

provided details on how many 

countries get direct funding for 

education or use GBs, including 

mDG contracts, as aid delivery 

methods.

36  the new mDG (millennium 
development goal) contract is 

a commitment of funds for the 

full six years of the 10th EDf 

whereby at least 70 % of the 

total commitment will be 

disbursed unless there is an 

unambiguous breach in the 

eligibility conditions for GBs. 

62.  

 t h e   m o n i t o r i n g   o f   E U - f u n d e d   i n t e r ve n t i o n s,   a n d   s B s   i n   p a r -
ticular, is mainly done through joint reviews, which the devel-
opment par tners collec tively rely on for monitoring purposes. 
the cour t found that the focus in these reviews tends to be on 
processes and financial issues linked to specific disbursement 
con ditio ns rat her  than on  e duc ati on outcom es.

63.  

64.  

65.  

c O m m i s s i O n  s t a f f  e x p e r t i s e  i n  e d u c a t i O n   n O t  a p p r O p r i a t e l y 
d e v e l O p e d  a n d  a l l O c a t e d

the  cour t  considers  that  for  each  countr y  where  education  is 
a focal sec tor or covered by GBs, the delegation should assign 
staff with the necessar y exper tise (or who have the oppor tunity 
t o   d e v e l o p   i t )   t o   e n g a g e   i n   p o l i c y   d i a l o g u e   a n d   m o n i t o r   t h e 
s e c t o r,   w i t h   re c o u r s e   t o   e x p e r t   a d v i c e   a s   a p p ro p r i a t e.   At   t h e 
time of the audit the overall allocation of staff was sub optimal 
and did not provide delegations consistently with the exper tise 
n e e d e d   to   a l l ow   t h e m   to   m a n a g e   t h e   co m m i s s i o n’s   p o r t fo l i o 
in the sec tor.

 At the end of 2009, out of the 44 Delegations worldwide where 
education was a focal sector, 16 — more than a third — did not 
have a person assigned to education 35. i n the seven countr ies 
w i t h   a n   mD G   c o n t r a c t   ( a l l   i n   s u b -sa h a r a n   A f r i c a ) 3 6  a   t o t a l   o f 
o n l y   t h r e e   p e r s o n s   w e r e   a s s i g n e d   i n   t w o   c o u n t r i e s   t o   w o r k 
o n   e d u c a t i o n ,   w h i l e   t wo   d e l e g a t i o n s   ( ta n z a n i a   a n d   r w a n d a ) 
r e l i e d   o n   t h e   e x p e r t i s e   o f   m e m b e r   st a t e s .   B o x   6   s h o w s   a n 
e x a m p l e   o f   d e l ay   i n   a s s i gn i n g   s t a f f   a n d   t h e   co n s e q u e n ce s   i n 
lib er ia.

 W h e r e   g e n e r a l   o r   s e c t o r   b u d g e t   s u p p o r t   i s   c o n c e r n e d ,   t h e 
a b s e n c e   o f   s t a f f   w i t h   t h e   n e c e s s a r y   e x p e r t i s e   a n d   s e n i o r i t y 
we akens   bo th   the  del eg atio n’s  di alog ue  wit h   th e   be ne fi cia r y 
c o u n t r y   a n d   i t s   p a r t i c i p a t i o n   i n   j o i n t   w o r k i n g   g r o u p s   w i t h 
o t h e r   d o n o r s   t h a t   m o n i t o r   p e r fo r m a n c e.  t h i s   m e a n s   t h a t   a n 
e s s e nt i a l   e l e m e nt   i n   e n s u r i n g   t h at   b u d g e t   s u p p o r t   m e e t s   i t s 
ob jec tive s is  imp aired an d may  e ve n  be  wh olly  d is abled.

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66.  

 the commission’s difficult y in assigning staff with the appro -
p r i ate   p ro f i l e s   to   d e l e g at i o n s,   re f l e c t i n g   p ro b l e m s   re l ate d   to 
recruitment procedures, staff qualifications and tur nover, is a 
g e n e ra l   co n ce r n   t h at   c a n n o t   b e   co m p e n s ate d   fo r   by   hQ   s u p -
por t  or  by  cont rac t   ag ent s 37. th e  cour t  obse r ve d  that  e duc a -
t i o n   e x p e r t s   a r e   t y p i c a l l y   n o t   E U   o f f i c i a l s   a n d   t h e   e x t e n t   o f 
their training on commission procedures var ies considerably. 
on   t h e   o t h e r   h a n d   t h e   g e n e r a l i s t   p ro f i l e s   o f   s t a f f   i n   d e l e g a -
tions did not always have the r ight mix of thematic exper tise, 
c o m p e t e n c y   a n d   s k i l l s   f o r   m a n a g i n g   sBs  a n d   G Bs  i n t e r v e n -
tio ns.

37  EuropeAid’s internal Audit 
capability (iAc) conclusions 

following an audit on human 

resources development in 

delegations in 2009.

67.  

 Wi t h   r e s p e c t   t o   s t a f f   s u p p o r t   f r o m   h e a d q u a r t e r s ,   t h e   c o u r t 
foun d  t hat   th ere  are  no  c le ar   cr ite r ia  or   m ech an i sms   in   place 
t o   d e t e r m i n e   t h e   n e e d s   o r   t h e   p r i o r i t i e s   fo r   t h e   o n - d e m a n d 
advice provided by the thematic, specialist units in the Devel-
op me nt  DG  a nd Eu rop eA id respe c t ive ly.

b o x   6

li b e r iA :  st Af f i nG   Pr o b l e m s   i n  t h e   co m m i s s i o n ’s   mo n r o v iA  
o f f i c e

Between August 2007 and september 2008 the commission’s office in monrovia was unable to do 
follow-up on the programme for Ec support to education in liberia (EcsEl) due to the lack of staff 
dedicated to the sector. the lack of timely and effective follow-up was one the main reasons for the 
project’s considerable delay and the fact that many activities and results today are at risk. 

Even when the highest political level, including the commissioner for Development, drew attention to 
the staffing problems in monrovia, the commission’s response was too slow to ensure that the EcsEl 
project stayed on track.

it took 25 months from the time the Development DG’s top management requested urgent action to 
resolve the staffing problems in monrovia (in february 2007) before the long-term technical assistance 
for EcsEl actually arrived in m onrovia (in m arch 2009).

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

41

68.  

69.  

t h e eu  p r O v i d e d  c a p a c i t y  d e v e l O p m e n t  s u p p O r t   b u t  i n  m O s t 
c a s e s  i t  d i d  n O t  w O r k   a s  i n t e n d e d

 s e c t o r   p ro g r a m m e s   a n d   b u d g e t   s u p p o r t   g i ve   t h e   o w n e r s h i p 
and responsibilit y for programme management to the par tner 
gover nme nt s.  i t  is th erefo re ess ential to ensure t hat  th e c ap -
acit y  of   th e  rel evant  in stitu tions   an d  per s ons   to  ma nag e   an d 
im p le me nt  thes e p rogrammes  is  ad equate. 

 the cour t found that the commission intended to provide cap-
acit y devel o p ment s up p or t for all  th e  e duc ati on  program me s 
a u d i t e d,   i n c l u d i n g   t h e   s t re n g t h e n i n g   o f   t h e   e d u c a t i o n   m a n -
agement information systems (see paragraph 60). however, in 
most of the audited countries (Burk ina faso, liberia,  namibia, 
nepal,  n iger and tanzania) the EU capacit y development sup -
por t did not work as intended. the main weak nesses identified 
rel ate d to : 

(a ) 

n o t   p ro p e r l y   p l a n n i n g   a n d   p l a c i n g   c a p a c i t y   d e ve l o p m e nt 
initiatives in their strategic contex t, resulting in provision 
o f   t e c h n i c a l   a s s i s t a n c e   o n   a n   a d   h o c   b a s i s   a n d   f a i l u re   t o 
t ran sfer k n ow led ge effec tively ;

(b) 

the commission’s failure to mobilise human and technical 
resources on time, resulting in a considerable delay of the 
p ro jec t ;

(c) 

t he te chnical  assis tance to suppor t  pla nn i ng, m on itor i ng, 
the budgeting process and financial management in educa-
tion not being realised due to tendering problems and the 
g ove r nment ’s rel u c tance to  as k for   te ch ni cal s uppor t;

(d ) 

ins uff icient q ual it y  of the under l yi n g  st udi e s  ( s ee  

Box  7) .

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special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

42

70.  

 in line with the paris Declaration 38 and the recommendations of 
the cour t of Auditors 39, in July 2008, the commission adopted 
a strategy under which it is increasingly work ing together with 
gover nme nt  and d evel o p ment par t ne r s  i n  tech n ica l coope ra-
tion for capacit y development based on par tner governments’ 
demands 40. During the course of this audit it was, however, too 
ear ly  to  assess  t he effec tiveness  of  th is  s trateg y.

38  the paris Declaration states 
that ‘capacity development is 

the responsibility of partner 

countries with donors playing  

a support role’.

39  European court of Auditors’ 
special report no 6/2007 on 

the effectiveness of technical 

assistance in the context of 

capacity development  

(http://eca.europa.eu/portal/pls/

portal/docs/1/673583.pDf).

40  ‘reforming technical 
cooperation and project 

implementation units for 

external aid provided by the 

European commission —  

A backbone strategy’.

b o x   7

bu r k i nA   fAs o :  no   c A PAc i t y   d e v e loP m e n t   s uP Po r t   co u l d 
b e   Pr o v i d e d   by  t h e   co m m i s s i o n   u n d e r  t h e   20 0 5 – 0 8  b u dGe t 
s uP Po r t 

the commission financed an identification study to develop a strategy and a multiannual plan for the 
capacity development of the financing and planning departments of the ministry of Education. the 
recommendations were not implemented by the ministry given their excessive number and complex-
ity. furthermore, the ministry asked for a second study in order to ensure the coherence between the 
proposed actions and the incipient decentralisation process. this second study was judged by the 
delegation as of average quality, voluminous and difficult to use. these recommendations were also 
not implemented. meanwhile, a technical committee was set up by the ministry and the World Bank, 
charged with developing a multiannual planning for the ministry of Education as a whole. Because 
of the average quality of these reports and subsequent low level of ownership by the ministry, the 
funds allocated by the commission to capacity development of the ministry (1 million euro) could not 
be committed and ultimately no capacity development assistance could be provided in the 2005–08 
budget support.

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

conclUsions  AnD 
rEcommEnDA tions

43

71.  

72.  

73.  

74.  

t h e   e u   i n t e r v e n t i o n s   Ac h i e v e d   s o m e 
o f  t h e   e xPe c t e d   i mPr o v e m e n t s   i n   b As i c  
e d u c At i o n   i n   s u b-sAhAr An   Af r i c A   An d  
s o u t h   As iA ,  b u t   l e s s  t hAn   i n t e n d e d

 o v e r a l l ,   s i g n i f i c a n t   p r o g r e s s   h a s   b e e n   m a d e ,   a l t h o u g h   o n l y 
45 % of the targets in the audited financing agreements were 
ful l y a chieve d.

for the priority goal of ensuring primar y education for all chil-
dren (mDG  2), o nl y s ome of t he i nte nd ed  i mprove me nt s we re 
achieved and progress has in general been too slow to ensure 
that   ta rg e ts  fo r  20 15   w il l   b e  me t.  th e  results  for   provis ion  of 
p r i m a r y   e d u c a t i o n   w e r e   i n   g e n e r a l   m o d e s t ,   a l t h o u g h   b e t t e r 
for enro l ment th an for com plet ion .

for the objec tive of eliminating gender inequalities in educa -
tion, the EU’s inter ventions contributed to enabling the bene -
f i c i a r y   c o u n t r i e s   t o   a c h i e v e   s o m e   o f   t h e   i n t e n d e d   i m p r o v e -
m e n t s .   B u t   s i g n i f i c a n t   i n e q u a l i t i e s   p e r s i s t   w i t h i n   p a r t i c u l a r 
regio ns and so c ial  group s.

fo r   t h e   t h i r d   a n d   f i n a l   p r i o r i t y   g o a l   c o n s i d e r e d ,   i m p r o v i n g 
the   q ual it y  o f  ed uc atio n,   the  audi t  con cludes   t hat  fe w  of   th e 
inte nded  im provements  were ac h ie ved.  Wh il st  it  is  wid el y ac-
cepted that education quality is difficult to measure, it appears 
that the priority given to mDG 2 (which is largely quantitative) 
too k  at te nt io n  away   fro m  asses sme nt   of   ed ucat ion   qual it y   in 
ear lie r years.

75.  

th i s   i s   o n l y   p a r t i a l   s u cce s s,   b u t   t h e   a c h i e ve m e n t   s h o u l d   n o t 
be   un derest imated.  howeve r,  it  demonst rates  how  ne ce ssa r y 
good management is to assure that EU funds are well targeted 
an d m on ito red to en su re they  are  use d to be st  ad va nta ge.

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76.  

77.  

t h e   co m m i s s i o n ’s   mAnAGe m e n t   d i d 
n ot   co n s i s t e n t ly   e n s u r e   A P Pr oPr iA t e 
Pr oGr Am m i nG   An d   i mPl e m e n t At i o n   o f   
e u   i n t e r v e n t i o n s

 Where sec tor budget suppor t was the aid deliver y method this 
cho ice g enerally  co nfo r med wit h th e  commiss ion g uide lin es. 
the   co mm issio n  did  no t  ful l y  cons ider   t he   ad vantag es   of   t he 
m e a s u re s   fo r   m i t i g at i n g   f i d u c i a r y  r is k s   s u c h   a s   t h o s e   u s e d   i n 
pooled funding. fewer detailed targets and indicators for basic 
e d u c a t i o n   we re   s e t   i n   g e n e r a l   b u d g e t   s u p p o r t   a n d   d i a l o g u e 
w a s   l e s s   i n t e n s i v e .   t h e   c o u r t   n o t e d   t w o   c a s e s   i n   n i g e r   a n d 
Burk ina faso where general budget suppor t had a strong edu-
cat io n se c to r fo c us  b ut  this was  late r  aban don e d.

the commission’s focus on the mDGs in the programming and 
for m ul at io n o f its  assis tance to e ducati on  i s g e ne ra lly  appro -
p r i a t e.  t h e   mD G   a n d   Ef A   g o a l s   d o   n o t   a s   s u c h   a u t o m a t i c a l l y 
re p re s e n t   a c h i e v a b l e   p r i o r i t i e s,   i n   p a r t i c u l a r   fo r   t h e   wo r l d ’s 
poo rest   countr ies.   i ns uf ficie nt   at tention  is  paid  to  i ndi cator s 
for education qualit y. there was little evidence that the effec t 
of demographic change — principally population growth — on 
trend s  and he nce o n ind icators h as  be en  t houg ht t h roug h .

78.  

t h e   b e n e f i c i a r y   g o ve r n m e n t s’  e d u c a t i o n   m a n a g e m e n t   i n fo r-
m at i o n   s ys te m s   t h at   t h e   co m m i s s i o n   re l i e s   o n   d o   n o t   a l ways 
provide  suf ficie nt,  rel iab l e and  ti me ly  in for m ati on. 

79.   c o o r d i n a t i o n   w i t h   o t h e r   d o n o r s   h a s   g e n e r a l l y   i m p r o v e d   a l -
though it entails some compromises which sometimes affected 
the commission’s own management or priorities, including the 
sel ec tio n an d use of ind icators.

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45

80.  

 Education exper tise is not optimally assigned and developed in 
del eg atio ns, w hich redu ces th e commiss ion’s abilit y to main-
t a i n   t h e   s e c to r   d i a l o g u e   o n   e d u c a t i o n   a n d   to   p l ay   a   f u l l   ro l e 
in   wo r k ing  gro up s   w ith   oth er  don or s.  th is  depr ives   t he  com-
mission of a vital monitoring mechanism as well as of the best 
op p o r t unit ie s for  effec t ive inf lue n ce  on  im plem ent ation .

81.  

t h e   E U   p ro v i d e d   c a p a c i t y   d e ve l o p m e n t   s u p p o r t   b u t   i n   m o s t 
case s it  did no t  wor k as inten ded.

r e co m m e n d At i o n s

82.  

i n view of the scale and universal nature of the goals, the ma-
jorit y of significant education development takes place in the 
contex t of national programmes run by par tner gover nments. 
in such cases the EU contribution is only one among many and 
t h e   c o m m i s s i o n   h a s   n o   d i r e c t   p o w e r   o v e r   i m p l e m e n t a t i o n . 
Whe re edu catio n is  a focal  sec tor  or  cove re d th roug h  ge n eral 
budget suppor t, t wo main points are vital for the commission 
to   d i s c h a rg e   i t s   re s p o n s i b i l i t y   fo r   t h e   b u d g e t ,   a n d   to   e n s u re 
t h a t   E U   a s s i s t a n c e   i s   a s   e f fe c t i v e   a s   p o s s i b l e :   t h e   e s t a b l i s h -
ment of well- chosen and realistic indicators and targets so as 
to  m o n ito r  re s u l t s   ef fe c ti vel y ;   a n d  en s ur in g   t hat   d el e g at io ns 
as s ign st aff wit h t he exp er tise an d s e ni or it y  ne e ded  to ma in -
t a i n   d i a l o g u e   w i t h   p a r t n e r   g o v e r n m e n t s   a n d   o t h e r   d o n o r s , 
in   p ar t icul ar  to  hel p   ensu re  th at  programm e  im pl em entat ion 
leads to the intended results as far as EU development assist-
an ce is  co nce r ne d.

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special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

46

83.  

i n   d e t a i l ,   t h e   c o u r t   r e c o m m e n d s   t h a t   t h e   c o m m i s s i o n 
sho ul d :

(a ) 

i n   v i e w   o f   i t s   m o r e   l i m i t e d   f o c u s   o n   t h e   s o c i a l   s e c t o r s , 
review the effec t of the increased use of GB s in sub - saha -
r a n   A f r i c a   o n   d e ve l o p m e n t   a s s i s t a n c e   fo r   e d u c a t i o n ,   a n d 
co nsid er w het her  ad ju stments  to  f ut ure  pro gramm in g  are 
ne eded ;

(b) 

e n s u r e   t h a t   f u t u r e   d e v e l o p m e n t   a s s i s t a n c e   t o   e d u c a t i o n 
to a greater ex tent than in the past focuses on the qualit y 
of education and the capacit y of beneficiar y gover nments 
to  co pe  wit h increas es in s ch ool e n rolm ent ;

(c) 

u pd ate   and  expa nd  the  rele vant   gui de lin es   fo r   ed uc at ion 
cove r i n g   a l l   a i d   d e l i ve r y   m e t h o d s   re l e va nt   fo r   t h e   s e c to r, 
incl u ding  po ol e d fun ding and  ge ne ral bud ge t  s uppor t,  i n 
a co mp rehe nsive mann er and  cover i ng  e xpl ic it ly :

(i) 

in what situations it is advisable to apply GBs  to sup -
p or t  edu catio n ou tcomes;

(ii) 

h o w   t o   c a r r y   o u t   e d u c a t i o n   p o l i c y   d i a l o g u e   w h e r e 
G B s   i s   t h e   o n l y   a i d   d e l i ve r y   m e t h o d   c o n c e r n e d   w i t h 
ed uc at ion;

(iii) 

how to choose and design relevant per formance indi -
cato rs  for  e ducation  in GBs;

(iv) 

how to per form sec tor per formance review in the sBs  
co ntex t;

(d ) 

sys tem at icall y us e a mix ture  of aid de li ver y m eth od s,  an d 
in par ticular consider running a number of projec ts as well 
as programme suppor t to ensure local k nowledge, to get a 
cross-bearing on monitoring, and to benefit from non-state 
ac tors’ abilit y to innovate and to provide for hard-to -reach 
ch ild ren;

(e) 

p ro m o te   s e c to r- s p e c i f i c   p u b l i c   f i n a n c i a l   m a n a g e m e nt   re -
v i e w s   ( a n d   t h e   u s e   o f   pE t s)   a n d   p l a y   a   f u l l   p a r t   i n   t h e 
do no r edu cat io n wor k in g group wh e re mon itor i ng  can  be 
co o rdinated, su pp l emente d where appropr i ate  wi th  i nd e -
p end ent mo nitor ing mission s;

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(f ) 

ensure better alignment of different donors’ requirements 
c o n c e r n i n g   t h e   r e p o r t i n g   f o r m a t s   a n d   p e r f o r m a n c e   c r i-
teria to be used for government repor ting in the education   
sec tor, where education is a focal sec tor or where general 
b ud ge t  sup po r t  is p rovided.

this report was adopted by chamber  iii, headed by  mr  Jan  KinŠt , 
member of the cour t of Auditors, in luxembourg at its meeting 
of 16 november 2010.

For the Court of Auditors

vítor m anuel da silvA cAlDE irA
President

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special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

  
48

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special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
49

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special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
50

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special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
51

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special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
52

An n e x   i i

l i s t   o f   i n t e r v e n t i o n s   Au d i t e d

Country

Instrument/aid modality

Intervention

Total amount 
(million euro)

h
s
e
d
a
l
g
n
a
B

o
s
a
F
a
n
i
k
r
u
B

a
i
r
e
b
i
L

i

a
i
b
m
a
N

l
a
p
e
N

Sector policy support programme –  
Pool funding
(Dec. 2003 to Dec. 2009)

Second primary education development programme  
(PEDP II)

Project
(Dec. 2006 to Dec. 2010)

Project
(Dec. 2007 to Dec. 2012)

Project 
(1999–2004)

General budget support with education 
sector tranches 
(2005–08)

MDG contract
(2009–14)

Project 
(Oct. 2006 to Dec. 2010)

Support for non-formal primary education (NFPE)

Technical and vocational education and training (TVET)

Programme d’appui au secteur de l’éducation de base 
(PASEB)

General budget support to poverty reduction (2005–08) 
thereof:
— variable tranche — Education 
— sector allocation ‘Education for All’

Budget support to growth and poverty reduction, thereof:
— variable tranche — Education (2013–14)

EC support to education in Liberia (ECSEL)

General budget support
(Financing Agreement not yet signed)

Budget support for macroeconomic stabilisation (BSMS) 
(2009–11)

Sector budget support
(2003–09)

Sector budget support 
(at formulation stage —  
not yet approved)

Project/pool funding 
(1999–2004)

Sector budget support
(2008–13)

Sector budget support
(2010–13) (at formulation stage —  
not yet approved)

Namibia education sector programme (ESP) 

Proposal for a 10th EDF education sector policy support 
programme (SPSP)

Basic and primary education programme II (BPEP II)

Education sector policy support programme (ESPSP)

Proposal for a school sector reform programme (SSRP)

105,0

28,3

14,0

9,9

192,4

22,5
15,0

320,1
28,8

12,0

20,2

24,0

42,1

19,0

25,0

26,0

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

 
53

An n ex   i i

Country

Instrument/aid modality

Intervention

Total amount 
(million euro)

r
e
g
N

i

n
a
t
s
i
k
a
P

a
i
n
a
z
n
a
T

General budget support with education 
sector allocations
(PPARP 2006–08) 

General budget support 
(PPARP 2009–11)

Project (March 2002 to May 2009)

Project (phase 2005–07)

Project (phase 2008–10)

Programme 
(May 2003 to May 2008)

Sector budget support
(Dec. 2006 to Dec. 2011)

Sector budget support
(Dec. 2008 to June 2013)

Programme 
(Aug. 2009 to Aug. 2014)

Multiannual programme support to poverty reduction, 
thereof:
— variable tranche — Education
— sector allocation ‘Education for All’

Multiannual programme support to poverty reduction, 
thereof: 
— variable tranche — Education

Programme soutien à l’éducation de base dans deux zones 
éducatives innovantes — Souteba

Programme d’appui à la formation professionnelle continue 
et l’apprentissage

Programme d’appui à la formation professionnelle continue 
et à l’apprentissage 

The northern Pakistan education programme 2003–08 

Sindh education plan support programme

NWFP education sector reforms programme

Support to the technical and vocational education and 
training (TVET)

Programme (not yet signed)

Supporting TVET reform in Pakistan (TVET II)

General budget support 
(May 2006 to Dec. 2010)

Sector budget support
(Dec. 2006 to Dec. 2010)

MDG contract
(Dec. 2009 to May 2015)

Project with Oxfam UK 
(Dec. 2005 to Oct. 2009)

Project with Fida International
(Dec. 2005 to Jan. 2011) 

Project with Camfed
(Oct. 2008 to Oct. 2010)

Poverty reduction budget support programme (PRBS03)
—  Variable tranche 

Support to education sector reform programme

Millennium development goals contract 2009–15

Education quality improvement through pedagogy (EQUIP)

Youth with disabilities community programme  
(Work area 7: Functioning framework available for primary 
schools to mainstream children and youth with disabilities)

Civil society action for girls’ education in Tanzania

Project with Sense International
(Nov. 2008 to Nov. 2013)

Promoting access to education for deaf, blind and multiply 
disabled children in Tanzania

91,0

12,0
21,0

93,0

15,0

8,7

5,6

2,0

19,3

39,0

20,0

20,0

26,0

101,8

43,5

305,0

0,69

0,75

0,88

0,24

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

54

An n ex   i i

Country

Instrument/aid modality

Intervention

Total amount 
(million euro)

y
r
t
n
u
o
c
-
i
t
l
u
M

Contribution to a trust fund

Contribution to a trust fund

Contribution to a trust fund

Contribution to the FTI — Catalytic Trust Fund (EDF intra-
ACP allocation)

Contribution to the FTI — Catalytic Trust Fund (‘Investing in 
people’ thematic programme)

Contribution to the FTI — Catalytic Trust Fund (contribu-
tion to the Secretariat — ‘Investing in people’ thematic 
programme)

63,0

31,1

1,0

interventions in blue were also examined for their results (see Annex IV).

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

55

An n e x   i i i

t h e   At t r i b u t i o n   i s s u e   i n   b u dGe t   s uP Po r t   Pr oGr Am m e s

it is recognised that it is difficult to attribute changes in outcome indicators to any particular 
project or programmes. there are three important reasons for this: 

time lag: it takes time before an activity is implemented and bears fruit. it is therefore difficult 
to draw conclusions shortly after a programme has been completed. this is specifically the case 
when it comes to measures of education quality. for instance, it takes time to train teachers, pre-
pare a new curriculum, prepare textbooks, print them and distribute them before it significantly 
changes the situation on the ground and have a measurable impact on completion rates or learn-
ing achievements. Evidently, some interventions are more easily implemented than others and 
some are more visible or more strategic than others (e.g. building teacher training colleges or 
building schools). they are, however, all needed. there is no point in building schools if there are 
not enough trained teachers or if those who are trained are not allocated to the schools where 
they are most needed.

causality: the donor can never be entirely sure about which measure can really create change. 
Also, in most cases one set of outcomes does not depend on only one factor or one intervention.

contribution: EU-funded interventions often provide a limited share of all the resources for edu-
cation. this is true even in a small and highly aid dependent country but even more so in a big 
country with considerable resources of its own and many other development partners.

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special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

56

An n e x   i v

Au d i t e d   Pr oGr Am m e s   An d   Pr o j e c t s  w i t h   s u m mAr y   r e s u lt s

Country

Intervention

Funding modality: sector budget support

Subsector of  
intervention

Amount  
(committed)

Rating

Namibia

Nepal

Pakistan

Tanzania

Education sector programme (ESP)  
(2003–09)

Education sector policy support programme — 
ESPSP
(2008–13)

Sindh education plan support programme 
(2006–11)

Support to education sector reform  
programme (2006–10)

All education sector

Basic education

Basic education

Basic education

Funding modality: general budget support (GBS) with specific education sector allocations

Burkina Faso

Niger

General budget support to poverty reduction 
(2005–08) thereof:
— variable tranche — Education
— sector tranche ‘Education for All’ 

Multiannual programme support to poverty 
reduction (2006–08) thereof:
— variable tranche — Education
— sector tranche ‘Education for All’

Results mostly  
not achieved 

Results mostly not 
achieved to date

Not possible to assess1

Results mostly not 
achieved to date

Results mostly achieved

Results not achieved

24,0

25,0

39,0

43,5

192,4

22,5
15,0

91,0

12,0
21,0

Funding modality: general budget support (GBS) with social sector performance indicators linked to variable tranches

Tanzania2 

Poverty reduction budget support programme 
(PRBS03) (2006–08)
— variable tranche (2006/07)

Basic education  
(performance  
indicators)

Funding modality: pooled funding

Bangladesh

Second primary education development 
programme — PEDP II (2003–09)

Primary education

Nepal

Basic and primary education programme — 
BPEP II (1999–2004)

Basic education

101,8

0-15,33

105,0

19

Results mostly achieved

Results mostly not 
achieved 

Results mostly not 
achieved

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

57

An n ex   i v

Country

Intervention

Funding modality: programme/project

Subsector of  
intervention

Amount  
(committed)

Rating

Bangladesh

Bangladesh

Support for non-formal primary education — 
NFPE (Dec. 2006 to Dec. 2010)

Primary education

Technical and vocational education and training 
(2007–12)

TVET

Burkina Faso

Programme d’appui au secteur de l’éducation de 
base — PASEB (1999–2004)

Basic education

Liberia

EC support to education in Liberia — ECSEL 
(2006–10)

Governance and primary 
education

Niger

Niger

Niger

Pakistan

Tanzania

Tanzania

Tanzania

Tanzania

Programme soutien à l’éducation de base dans 
deux zones éducatives innovantes — 
Souteba (2002–09)

Programme d’appui à la formation 
professionnelle continue et l’apprentissage 
(phase 2005–07)

Programme d’appui à la formation 
professionnelle continue et à l’apprentissage 
(phase 2008–10)

Basic education

TVET

TVET

The northern Pakistan education programme 
(2003–08)

Basic and higher 
secondary education

Education quality improvement through 
pedagogy — EQUIP. project with Oxfam UK 
(2005–09)

Youth with disabilities community 
programme — Project with Fida International 
(2005–11)

Civil society action for girls’ education — 
Project with Camfed (2008–10)

Promoting access to education for deaf,  
blind and multiply disabled children —  
Sense International (2008–13)

Education facilities and 
training

Health education

Primary education

Education facilities and 
training

28,3

14,0

9,9

12,0

8,7

5,6

2

19,3

0,69

0,75

0,88

0,24

Results achieved to date

Too early to assess

Results mostly achieved

Results not achieved to 
date

Results mostly achieved

Results achieved

Results achieved to date

Results achieved

Results mostly not 
achieved or cannot be 
measured4

Results mostly not 
achieved to date or cannot 
be measured

Results mostly achieved 
to date

Results mostly achieved 
to date

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

58

An n ex   i v

Country

Intervention

Funding modality: contribution to a trust fund

Subsector of  
intervention

Amount  
(committed)

Rating

Global

Global

Global

Contribution to the FTI — Catalytic Trust Fund 
(EDF intra-ACP allocation)

Contribution to the FTI — Catalytic Trust Fund 
(‘Investing in people’ thematic programme)

Contribution to the FTI — Catalytic Trust Fund 
(contribution to the Secretariat — ‘Investing in 
people’ thematic programme)

Basic education

Basic education

Basic education

63,0

31,1

1,0

Results mostly not 
achieved to date

Results mostly not 
achieved to date

Results mostly not 
achieved to date

1 

2 

3 

4 

 The policy matrix does not include sufficient output and outcome indicators to assess results. Results in terms of financial input indicators and quantitative indicators 
regarding administrative and regulatory investments are being achieved to date.
 The results achieved refer to the only year for which targets were defined, 2006/07. While three out of four targets were achieved for 2006/07, for two out the four 
performance indicators targets and data were not available for the last two years of implementation (2007/08 and 2008/09).
 The amount available for the variable tranche comprised 9 million euro for the financial year 2008/09 and 6,3 million euro of undisbursed tranches from the financial 
year 2007/08. Of this variable tranche a maximum of 50 % could be disbursed on the basis of the performance on education indicators, while the remaining 50 % 
would be determined by the performance indicators on health.
 This particular project has had a very positive and measurable impact in the municipality where it was implemented. This includes significantly improved enrolment 
rates and pass rates in primary schools and the commitment of local authorities to maintain and fund the established infrastructure for teacher training centres. 
However, the Court’s assessment of the results achieved strictly refer to the expected results as they are formulated in the revised log-frame used in the final evaluation 
report (EQUIP — Final evaluation report — December 2008, Annex E).

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An n e x   v

o v e r v i e w   o f   s u m mAr y   r e s u lt s   Ac h i e v e d   Pe r   co u n t r y   An d  
Pr oGr Am m e   Au d i t e d / r e v i e w e d

note on colours used in the tables: 

black  —  indicator  used  in  the  report  to  measure  progress  in  general  and  towards  ensuring 
 primary education, and/or gender equality and quality of education (includes cases where the 
target was almost but not fully achieved (see for instance gross enrolment rate in Bangladesh));

blue — indicator used to measure only progress in general; 

orange — target not achieved.

b AnGl Ad e s h

s econd primar y educ ation  deve lopment  prog ramme  (PedP ii)  200 3–09

1. 

the  pEDp  ii inc lu de s s pe cific k ey  pe r for man ce i n dic ato r s (Kpis)  for  m e asur in g im prove -
m e n t s .   t h e   t a b l e   b e l o w   s u m m a r i s e s   t h e   p r o g r e s s   a c h i e v e d   o n   1 4   Kp i  a s   g i v e n   i n   t h e 
‘pEDp  ii primar y education annual sec tor per formance repor t 2009’.  the table shows that  
s i x   o u t   o f   t h e   1 4   k e y   p e r fo r m a n ce   i n d i c ato r s   a re   b e l ow   t a rg e t   a n d   t h re e   o f   t h e s e   e ve n 
h ave   a   n e g a t i ve   t re n d.  th e   c r i t i c a l   Kp is   t a rg e t s   t h a t   a re   u n l i k e l y   to   b e   a c h i e ve d   re l a te 
to: (i) c ycle completion rate, (ii) pupil lear ning achievement, and (iii) share of education 
exp endit ure  in Gnp.

comparison bet ween expec te d and   achieved  results 

Indicator

Baseline 
2005

Result 2008

Target 2009

Overall trend

Target achieved/ 
not achieved

Gross enrolment rate

Net enrolment rate

Completion rate

Stipend recipients (in millions)

Transition rate from grade 5 to 6

Education expenditure as % of GNP

93,70 %

97,60 %

87,20 %

90,80 %

52,10 %

50,70 %

4,3

92,40 %

1,93

4,8

95,6

2,14

98 %

90 %

55 %

4,3

96 %

2,80

Nearly on target

On target

Below target  
Negative trend

Above target

Nearly on target

Achieved

Achieved

Not achieved

Achieved

Achieved

Below target

Not achieved

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An n ex   v

Indicator

Baseline 
2005

Result 2008

Target 2009

Overall trend

Target achieved/ 
not achieved

Primary education expenditure in % of total 
education expenditure

Pupil absenteeism

Pupils per teacher ratio

37,10

40–41

23 %

54

19 %

50

45

18 %

46

Repetition rates grades 1 to 5

12,10 %

12,60 %

Below 10 %

Below target

Not achieved

Nearly on target

Positive trend

Slightly negative 
trend

Achieved

Achieved

Not achieved

Efficiency coefficient in years of input

8,1

8,6

7,5

Negative trend

Not achieved

Dropout rates grades 1 to 4

14,2 % (Gr1)
8,5 % (Gr2)

13,2 % (Gr1)
8,8 % (Gr2)

11,0 % (Gr3)

9,0 % (Gr3)

12,5 % (Gr4)

16,7 % (Gr4)

6 % fall

Not on target

Not achieved

Learning competences skills grade 5

51,4 %

65,90 %

Not fixed

Not comparable

N/A

Disadvantaged children enrolled

45,70 %

77,50 %

15 % rise

Above target

Achieved

2. 

3. 

4. 

pro gress  towards  access targets  is  on  t rack . fur th er m ore, the  targe ted gen der  par i t y i n 
pr imar y school enrolment was achieved. however, these access indicators mask consid -
e ra b l e   v a r i a t i o n s   a m o n g   d i s t r i c t s   a n d   s p e c i f i c   p o o r   gro u p s.   th e   d a t a   p ro d u ce d   by   t h e 
cu r rent  mon ito r ing  and eval uati on  system  do  not  all ow an  an alys is   of  t h es e var iations. 
pupil absenteeism was ver y near to the target of 18 % for 2009, although it was still too 
hi gh . 

As regards qualit y, the pupil:teacher ratio achieved half of the expec ted reduc tion to 46 
fo r   2 0 0 9 ,   a n d   t h e   p u p i l : c l a s s ro o m   rat i o   ( n o t   i n c l u d e d   i n   t h e s e   Kp i)   wa s   s t i l l   h i g h   ( 6 2 : 1 
ve rs us  targe t  o f  46 :1).

the biggest unsolved problem appears to be the ver y high dropout and failure rates, with 
over half of the children not even completing pr imar y education. the 2009 joint annual 
review mission of the programme complained that the overall dropout rate of 49,3 % in 
20 08  rema ined  unaccep tab l y  hig h   (t arge t  for   2 0 0 9 :   4 5   %) ,   a nd   t hat   p ub li c   sp en ding  on 
edu catio n of  2,1 4 % Gnp in  20 08  wa s s ti ll  far   sh or t  of t h e t arge t   of  2 ,8   %  for  2 00 9.

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An n ex   v

b u r k i nA   fAs o

Pover t y reduc tion budg et suppo r t  pro g ram me  wit h  specif ic educ ation 
alloc ations (Prbs) 2005–08

5. 

t h e   s u p p o r t   t o   e d u c a t i o n   u n d e r   t h i s   p r o g r a m m e   w a s   i n t e n d e d   t o   i n c r e a s e   a c c e s s ,   t o 
im p rove t he effic ienc y  of  the pr i mar y  sc h ool sys te m,  to red uce gen der  gap,  to i m prove 
te a c h i n g   co n d i t i o n s,   a n d   to   a s s u re   s u f f i c i e nt   f i n a n c i a l   re s o u rce s   fo r   e d u c at i o n .   As   c a n 
be   s ee n  f ro m  t he  info r matio n  provi de d  i n  t he   ta ble  be low,  a lthou gh   t he  f i ve  in d icators 
rel ate d to  ensu r ing  p r im ar y educ ati on an d g e nd er  par i t y  us ed  i n  t he p over t y red uc ti on 
b u d g e t   s u p p o r t   p ro gra m m e   2 0 0 5 – 0 8   h ave   a c h i e ve d   t h e i r   t a rg e t ,   o n l y   t wo   o f   t h o s e   re -
l a t e d   t o   q u a l i t y   e d u c a t i o n   u s e d   i n   t h e   s p e c i f i c   a l l o c a t i o n   t o   e d u c a t i o n   a c h i e ve d   t h e i r 
inte nded  re su lt .

comparison bet ween expec te d and   achieved  results 

Indicators

Baseline 2003

2006

Target

Result

Target 
achieved/  
not achieved

Budget support — education indicators

Gross intake rate at grade 1 (girls)

GER (primary)

GER in the 20 priority provinces

GER girls

Completion rate (primary)

Execution rate of Ministry of Education (MEBA) budget

Sector budget support education*

Pupil:teacher ratio

Book:pupil ratio (Arithmetic)

Book:pupil ratio (Language)

Percentage of pupils without seats

* Only positive trend was required.

69,50 %

60,30 %

49,10 %

55,40 %

35,00 %

90,00 %

61,50 %

52,20 %

37,60 %

46,30 %

31,30 %

> 90 %

52

0,22

0,32

15,4

73,20 %

66,60 %

52,30 %

61,20 %

36,40 %

Achieved

Achieved

Achieved

Achieved

Achieved

88,60 %

Not Achieved

54

0,73

0,58

21,4

Not achieved

Achieved

Achieved

Not achieved

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An n ex   v

6. 

7. 

8. 

i n   p r i m a r y   s c h o o l s,   t h e   i n c re a s e   i n   t h e   n u m b e r   o f   t e a c h e r s,   c l a s s r o o m s   a n d   s e a t s   d i d 
not  m eet  th e nu mb er of enrolled ch ild ren ,  wh ic h  was h ig h er  t han  ex pec ted.  As re gards 
efficienc y, the number of children dropping out of school was still high and the comple -
t i o n   r a t e   l o w.   A l t h o u g h   p ro g re s s   w a s   a c h i e ve d   i n   t h e   m o n i t o r i n g   o f   t h e   n a t i o n a l   p ro-
gram me (p l an d écennal  de développement  de  l ’é duc at ion  de  bas e)  t he  f in an c in g of the 
pro gram me  and   of  b asic  educ at i on  d id  n ot   i n c re ase   in   te r m s  of   allocat io ns   or  i n   ter ms 
of  bu dg et  execut ion.

l i b e r iA

ec suppor t to educ ation in liberia  (ecsel)  2006 –10

fe w   o f   t h e   o b s e r ve d   c h a n g e s   i n   t h e   e d u c a t i o n   o u t c o m e s   i n   li b e r i a   c a n   b e   a t t r i b u t e d 
(eve n  p ar t ial ly)  to   EcsEl.   th e  cons iderable  delays   in  Ec sEl  im ple mentati on  d o  n ot  yet 
a l l o w   f o r   a   g e n e r a l   a s s e s s m e n t   o f   t h e   r e s u l t s   o f   t h e   p r o j e c t .   s t i l l ,   t h e  ‘e m p i r i c a l ’  i m -
p r o v e m e n t   i n   t h e   t e x t b o o k - t o - p u p i l   r a t i o   t o   1 : 2   a n d   p r o g r e s s   i n   t h e   d e v e l o p m e n t   o f 
the  edu cat io n management in for mat ion  sys tem s ha d be e n ac h ieved  wit h  cont r i bu tions 
f ro m   E c s E l .  Wi t h   8 0   %   o f   t h e   o p e rat i o n a l   i m p l e m e nt at i o n   p e r i o d   p a s s e d,   o n l y   1 9   %   o f 
the  p l anned  p ro jec t ac t ivit ies h ave be en  com plete d,  an d 3 7  %  of t h e p la nn ed  ac t i viti es 
cannot be completed before the end of this period and will require a rider to the financ-
in g co n ditio ns. 

nAm i b iA

educ ation sec tor programme (esP)  20 03– 09

the focus of Esp has been on secondar y level access and completion with limited atten -
t i o n   p a i d   t o   p r i m a r y   e d u c a t i o n ,   t o   mD G s   a n d   Ef A   g o a l s.   A l t h o u g h   Es p  s t a r te d   a l re a d y 
i n   s e p te m b e r   2 0 0 3 ,   i t   w a s   n o t   p o s s i b l e   to   f u l l y   a s s e s s   t h e   p ro gr a m m e   co n t r i b u t i o n   to 
p l a n n e d   i m p r o v e m e n t s   i n   e d u c a t i o n   o u t c o m e s   d u e   t o   i t s   i n i t i a l   l o w   i m p l e m e n t a t i o n , 
the subsequent change in the programme strategy and shor tcomings in the monitor ing 
s ys te m .   howe ve r,   w h e re   ove ra l l   i n d i c ato r s   a re   ava i l a b l e,   t h e y   co nt i n u e   to   s h ow   m i xe d 
results (see the table below). the overall progress on education outcomes was assessed 
by  the   G ove r nment  of   namib ia  an d  t he  dele gation  as  mi xed,  wi th   po or   per for ma nce  in 
ter ms  of  qualit y  and addressin g  in e quali tie s. 

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An n ex   v

comparison bet ween expec te d and   achieved  results

Subsector

Indicators

Access

Early childhood and pre-
primary

Number of children aged 5–6 enrolled in 
pre-primary schools

Primary

Net enrolment rate for grades 1 to 7

Net enrolment rate for grades 8 to 12

Annual increase in the number of 
students in senior secondary level

Grade 11 intake (new students)

General enrolment in University of 
Namibia 

General enrolment at the Polytechnic of 
Namibia

Enrolment in Cosdec (community skills 
development centres)

Secondary

Tertiary

Vocational education and 
training

Baseline data 
2005

2008

Target

Result

Target 
achieved/  
not achieved

To be collected 

2 500

1 081

Not achieved

93,6 %

49,5 %

28 500

14 777

8 864

6 079

495

96,0 %

54,0 %

34 500

18 137

9 773

7 200

1 650

97,4 %

54,5 %

Achieved

Achieved

33 401

Not achieved

17 376

Not achieved

8 361

Not achieved

9 410

Achieved

1 149

Not achieved

Enrolment in Levels 1, 2 and 3 in existing 
vocational training centres (VTC)

1 160; 892; 
681

1 850; 1 250; 
900

1 652; 1 018; 
620

Not achieved

Information, adult and 
lifelong learning

Number of schools per region that have 
family literacy in place

1

7

10

Achieved

Quality

Early childhood and pre-
primary

Percentage of children entering primary 
having successfully completed the revised 
school readiness programme

2009 set as 
baseline year

No target

No data

N/A

Primary

Secondary

Survival rates in grade 5

88,0 %

94,5 %

89 %

Not achieved

Percentage of learners achieving D or 
better in mathematics, science and 
English in grade 5

No baseline 
data

No target

No data

N/A

Survival rates in grade 8

69,0 %

77 %

72 %

Not achieved

Percentage of learners achieving D or 
better in mathematics, science and 
English in grade 10 

Mat = 36,2; 
Sci = 38,3;  
EN = 45,4

Mat = 42,2; 
Sci = 48,1;  
EN = 52,4

Mat = 39,6; 
Sci = 46,3;  
EN = 42,8

Not achieved

Survival rates in grade 11

31,0 %

36 %

38 %

Achieved

Percentage of schools (primary and 
secondary) meeting the textbook ratio 1:2 
in mathematics, science and English

Ongoing 
baseline study 
(2009)

No target

No data

N/A

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An n ex   v

Subsector

Indicators

Baseline data 
2005

2008

Target

Result

VTC completion rate for all 3 levels

0,56

COSDEC completion rates

Adult literacy (15 years +)

No baseline 
data

84 %

70 %

75 %

87 %

Target 
achieved/  
not achieved

Achieved

Achieved

77 %

93 %

No data

N/A

Vocational education and 
training

Information, adult and 
lifelong learning

Equity

Primary and secondary

Secondary

Information, adult and 
lifelong learning

Efficiency

Primary

Percentage of the recurrent budget 
allocated through the per capita financing 
formula

Reduction in the number of secondary 
teachers without formal teaching in the 
most disadvantaged regions

Adequate regional resource and study 
centre facilities provided in 4 of the 13 
regions by 2013

Education radio programme broadcast 
by Namibian College of Opena Learning 
(Namcol) 

N/A

No target

No data

No baseline 
data

No baseline 
data

No target

No data

No target

No data

N/A

N/A

N/A

N/A

90

108

Achieved

Repetition rate in grade 1 

19,6 %

14,4 %

Repetition rate in grade 5 

22,1 %

16,1 %

Data not yet 
available

Data not yet 
available

N/A

N/A

Learner:teacher ratio*

30,7 %

33,70 %

29,40 %

Achieved

Repetition rate in grade 8 

Secondary

Learner:teacher ratio

Percentage of school managers on 
performance contracts

Vocational education and 
training

Percentage increase in revenue from the 
levy 

Information, adult and 
lifelong learning

Funding formula for grants to NAMCOL 
revised

23,1 %

24,9 %

N/A

N/A

N/A

16,1 %

26,4 %

30

Data not yet 
available

N/A

24,4 %

Achieved

Data not yet 
available

No target

No data

Finalised

Submitted. 
Waiting for 
approval

N/A

N/A

N/A

* The learner:teacher ratio has not been taken as an indicator of quality because the target was to increase the ratio for cost and efficiency reasons instead of decreasing 
it (which would indicate quality concerns).

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Subsector

Indicators

Baseline data 
2005

2008

Target

Result

Target 
achieved/  
not achieved

HIV/AIDS

All subsectors

Percentage of primary and secondary 
schools with HIV/AIDS plans 

Baseline data 
is collected 

No target

No data

N/A

Percentage of learners (from grade 5 up to  
grade 12) exposed to life skills education

Number of orphans and vulnerable 
children receiving psycho-social support

Number of orphans and vulnerable 
children under the school feeding 
programme

Percentage of secondary schools with 
student counselling programmes

No baseline 
data

No baseline 
data

No baseline 
data

Baseline data 
is collected 
(2007)

100 %

100 %

Achieved

No target

18 000

N/A

150 000

200 000

Achieved

No target

No data

N/A

9. 

Av a i l a b l e   i n d i c a t o r s   d e m o n s t r a t e   d e c r e a s i n g   t r e n d s   i n   e n r o l m e n t   a n d   s u r v i v a l   r a t e s 
since 2005. the unusual improvement in the 2008 enrolment rate is questionable due to 
a c hang e  in  t he c al cul at ion  met h od of  th e  rat io.  sign ificant ac hievements in the  reduc -
tion of gender dispar ities in education have been achieved. Available indicators do not 
dem ons t rate  imp rovements in t h e quali t y of  t he  e ducat ion  d ur i n g Es p im p lem ent ation 
(exce pt   t he  intro du c tion  o f  life  sk ill s  i n   th e   cur r i culum )  w hi le   a  la c k  of   in d icators  does 
n o t   a l l o w   f o r   a s s e s s i n g   i m p r o v e m e n t s   i n   a d d r e s s i n g   i n e q u a l i t i e s   ( e . g .   s o c i a l ,   e t h n i c 
o r   re gi o n a l   d i s p a r i t i e s )   w i t h   t h e   e xce p t i o n   o f   o r p h a n s   a n d   v u l n e ra b l e   c h i l d re n   h av i n g  
access  to  fee din g p ro gram mes.

n ePAl

educ ation sec tor polic y supp or t  pro gram me  (esPsP)  200 8–13

10.  

the Espsp financed only the last t wo fiscal years (2007/08 and 2008/09) of the five -year 
national ‘Education for All ’ programme (E fA) 1. i n addition, the financing agreement was 
not  signed until  mid- 20 08  w hen  t he  Ef A programme  was  reach ing  it s las t year, and  the 
payments were made quick ly, in the space of one year. the Espsp contribution to achiev -
in g Ef A  g oal s  was th erefore limited.

1  the Espsp also provides sector budget support for capacity development. 

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11.   only four of the 18 indicators selec ted for EfA have fully reached their target: the gross 
enrolment rate (GEr) for early childhood development (66,2 % as against 51 %), the per -
centage of teachers with the required cer tification (100 % as against 99 %), the literac y 
rate (target of 82 % reached in 2008) and the gender par it y index for grades 1 to 5 (0,98 
a s   a g a i n s t   0 , 9 ) .   on e   i n d i c ato r   h a s   p a r t i a l l y   m e t   i t s   t a rg e t ,   i . e.   l e a r n i n g   a c h i e ve m e nt   at 
grad e 5 (o nly  fo r  so cial  st udies)   (s ee  t he  t able  bel ow). 

comparison bet ween expec te d and   achieved  results 

Indicators

Baseline 2001

2009

Target 

Results 2009 
(unless other-
wise specified) 

Target 
achieved/
not achieved

Expanding early childhood development (ECD) and pre-primary childhood (PPC) services to poor and 
disadvantaged children

• GER for ECD/PPC

• New entrants in grade 1 with ECD

Ensuring access to education for all children

• NER for grades 1 to 5 

• Gross intake rate at grade 1*

• Net intake rate at grade 1

• GER primary 

Meeting the learning needs of all children

• Repetition rate at grade 1

• Repetition rate at grade 5 

13 %

8 %

81 %

141 %

54 %

123 %

39 %

9 %

51 %

60 %

96 %

110 %

95 %

104 %

10 %

3 %

• Survival rate to grade 5

66 %

86 %

66,20 %

Achieved

49,90 %

Not achieved

93,70 %

Not achieved

144 %

Not achieved

86,40 %

Not achieved

141,40 %

Not achieved

26,50 %

Not achieved

6,7 %  
(females 6,8, 
males 6,6)

77,9 %  
(females 80, 
males 78)

Not achieved

Not achieved

*  Gross intake rate at grade 1 above 100 % is difficult to interpret. It may reflect unreliable population data and/or significant late enrolment, re-enrolment of dropouts, 
repetition counted as new enrolment or even migration from neighbouring populations. For this reason, this indicator is not taken as a measure of enrolment in this 
report. 

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Indicators

Baseline 2001

2009

Target 

Results 2009 
(unless other-
wise specified) 

Target 
achieved/
not achieved

Reducing adult illiteracy

• Literacy rate 15+ 

48 %

66 %

55,6 % (2008)

Not achieved

• Literacy rate age group 15–24

70 %

82 %

Females 15–19: 
79,7 % (2008)

19–24: 69,8 % 
(2008)

Males 15–19: 
91,9 % (2008)

20–24:  
89,5 % (2008)

Not achieved

Achieved

Achieved

63,2 % (2006)

Not achieved

• Literacy rate 6+ 

54 %

76 %

Males: 75

Achieved

• Literacy gender parity index 15+

Eliminating gender disparity

• Gender parity for grades 1 to 5 

Improving all aspects of quality education

• Pupil:teacher ratio at primary

• Percentage of teachers with required qualification and training

• Percentage of teachers with required certification

0,6

0,6

39

15

16,6

0,9

0,9

37

99

99

• Percentage of learning achievement at grade 5

40

60

Females: 53

Not achieved

0,71 (2008)

Not achieved

0,98

Achieved

41,7

91,70

100

Not achieved

Not achieved

Achieved

Nepali 45 (2008)

Not achieved

English 40 
(2008)

Not achieved

Maths 48 (2008)

Not achieved

Science and env.  
46 (2008)

Social studies  
65 (2008)

Not achieved

Achieved

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An n ex   v

12.  

13.  

14.  

15.  

Even  th oug h ta rg et s were not m et fo r  most  of  th e  i ndi c ato r s, a nd s om e  o f t he m  are dif-
ficult to interpret because of the fragilit y of the population data, they generally showed 
progress on most aspec ts. however, there are vast disparities bet ween distric ts for most 
o f   t h e   i n d i c a t o r s,   a n d   m a ny   o f   t h e   i s s u e s   i d e n t i f i e d   d u r i n g   t h e   B p E p   i i   a n d   h i n d e r i n g 
p r o g r e s s   t o w a r d s   Ef A   g o a l s   r e m a i n   ( s e e   b e l o w ) .   pr o g r e s s   h a s   b e e n   l e s s   s i g n i f i c a n t   i n 
re d u c i n g   a d u l t   i l l i te ra c y   a n d   i n   i m p rov i n g   t h e   q u a l i t y   o f   e d u c a t i o n .   D e s p i te   p ro gre s s, 
there is still much inefficienc y in the school system. strong commitment towards educa -
t i o n   e n s u re s   i n s t i t u t i o n a l   s u s t a i n a b i l i t y,   a l t h o u g h   ne p a l   re m a i n s   h i g h l y   d e p e n d e nt   o n 
don or  sup p or t. 

basic and primar y educ atio n prog ramm e ii  199 9–200 4  (bPeP ii)

t h e r e   a r e   n o   p e r f o r m a n c e   i n d i c a t o r s   i n   t h e   f i n a n c i n g   a g r e e m e n t   a n d   t h e   a u d i t   h a s 
been limited by inconsistenc y in the use of the key per for mance indicators through the 
p ro gra m m e 2.   Eva l u at i o n s   o f   t h e   p ro gra m m e   m a d e   l i t t l e   u s e   o f   i n d i c ato r s.  th e re fo re,   i t 
wa s   n o t   p o s s i b l e   to   co m p a re   t h e   re s u l t s   a c h i e ve d   w i t h   a ny   p a r t i c u l a r   b e n c h m a r k s   a n d 
targ et s.

t h e   BpEp 
i i  c o n t r i b u t e d   t o   b r i n g i n g   c h i l d r e n   i n t o   t h e   p r i m a r y   s c h o o l   s y s t e m   a n d   t o 
d e c r e a s i n g   t h e   g e n d e r   g a p.   ho w e v e r,   b o y s   e n r o l l e d   a t   m u c h   h i g h e r   r a t e s   t h a n   g i r l s , 
t h e r e   w a s   a   l a c k   o f   fe m a l e   t e a c h e r s ,   a n d   l a c k   o f   p a r i t y   i n   p r i v a t e   s c h o o l s   r e m a i n e d   a 
concern. i mprovements in reducing repetition and dropout rates remained modest, and 
the  p ro gramme  h ad l itt l e impac t on  br i ngi n g margin ali se d an d  d is advant aged  children 
into the schools. i mprovements in access might be overstated. i mprovements in qualit y 
we re  diffic ul t   to   demo ns trate,   an d  t h ere  was  lit tl e  ev ide n ce   of   gain s   in   t h is   area.   BpEp  
ii he lp ed  to  d evel op  c apacities at al l le vel s but  many  s hor tcom ing s  were  ident if ied.

th e ‘A p p rais ing   Ec  s up p or t   to  Ef A’  repor t  con cluded  that  t here  is   l itt le   ev i de nce   of  the 
impac t of BpEp  ii.  the perception is that of an absence of impac t in relation to the fund -
i n g   p r o v i d e d ,   a n d   t o o   m u c h   f o c u s   o n   e n s u r i n g   a c c e s s   t o   t h e   d e t r i m e n t   o f   i m p r o v i n g 
qual it y.  however,  t he p ro gramme helped to s t ren gt h en  own er s hi p an d par t n ers hi p  and 
pave d t he way for k ey p ol ic y  deve lopme nt an d impl eme ntat ion  is su es i n  m any areas of 
bas ic a nd pr imar y  ed ucat io n.

2  the programme implementation plan had a set of indicators which are not the same as those of the policy framework. After the mid-
term review of the programme, the indicators were changed to the EfA indicators to be used for the new EfA programme.

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An n ex   v

n iGe r

Pover t y reduc tion budg et suppo r t  pro g ram me  wit h  specif ic educ ation 
alloc ations (PPArP)  2006–08

16.   As can be seen from the table below, the programme did not achieve its intended results 

excep t  fo r t he  e xecut ion rate of  th e  m in istr y  of Education budget.

comparison bet ween expec te d and   achieved  results 

Indicator 

Pupil:table ratio in rural areas

GER (primary)

GER girls

GER in rural areas

Completion rate (primary)

Utilisation rate of MOE budget

Baseline data 
2005

2006

Target

Result

Target achieved/  
not achieved

4

45,4 %

36,5 %

42,6 %

24,7 %

3,7

57 %

49 %

54 %

43 %

3,8

54 %

44 %

52 %

40 %

Not achieved

Not achieved

Not achieved

Not achieved

Not achieved

> 90 %

95,60 %

Achieved

17.  

Enro l me nt  rate s  imp roved q uite s ignif ic a ntl y ( 1 0 points  pe rce nt age  i nc re ase  in  t h e GEr 
in   t hree  ye ars  in  ru ral   areas )  ove r   th i s  t im e,  a lth ough   re tenti on   i s  st i ll  p rob lem at ic  and 
fe w   p u p i l s   co m p l e te   a   f u l l   c yc le   o f   p r i m a r y   e d u c at i o n .   le a r n i n g   a c h i e ve m e nt s   a re   a l s o 
l o w.   G e n d e r   i s s u e s,   a n d   t o   s o m e   e x t e n t   t h e   h i g h   p ro p o r t i o n   ( 8 3   % )   o f   t h e   p o p u l a t i o n 
livin g in rural  areas and  th e exp an si on of  bil in g ua l e duc ati on,  were n ot  fu lly t ake n i nto 
co n s i d e r a t i o n   i n   t h e   p ro gr a m m e   a n d   co n s e q u e n t l y   i n s u f f i c i e n t   f u n d i n g   w a s   a l l o c a te d 
to  the se asp ec t s. 

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An n ex   v

PAk i s t An

sindh educ ation plan  suppor t program me  (2006–1 1)

18.  

th e  p rogramme   has   h ad  a  sl ow  st ar t   up:   a lth ough   t h e  f in an ci ng   agreem ent   was  signed 
at  t he en d o f 20 06 , the firs t pay ment  was m ade  onl y  i n o c tobe r 20 08 . fur th er more, the 
resu l ts  matr ix o f t he f in anc ing agre em ent  d oes  not  fol low th e  p rogram m in g gui delines 
for education in terms of output and outcome indicators. this is due to the fac t that the 
EU  co ntr ibu tes to geth er w ith th e  Wor l d Ban k  to t he  educ at ion  sec tor in  sin dh  province 
an d  t he  Wo r ld  Bank   do es  n o t  follow  t he   s ame   approac h  as  th e  E U. th e  mat r ix  does  not 
in cl ud e  su ffic ient   ou tp u t  indic ator s  to  give   a n  i nd ic at ion   of  t he   edu cat ion   system’s  ca -
pacity, which has a direc t impac t on the quality of education provided (e.g. pupil:teacher 
rat io,   bo ok : pup il   ratio,   teach er : class room   rati o).   outcome   in dicator s  measur ing  re sults 
c o n c e r n i n g   a c c e s s   t o   e d u c a t i o n   ( i . e.   e n ro l m e n t   r a t e s )   a n d   e f f i c i e n c y   ( e. g.   c o m p l e t i o n 
ra te )   a re   a l s o   m i s s i n g   i n   t h i s   m a t r i x .  th e re fo re,   i t   w a s   n o t   p o s s i b l e   to   co m p a re   re s u l t s 
with specific benchmarks and targets. A new, revised matrix, introduced in 2010, contains 
mo re  indic ators b u t the n u mber  of  outcom e  in di cator s  i s s ti ll  lim ited.

tAn z An iA

Pover t y reduc tion budg et suppo r t  pro g ram me  (2006 –08) a nd suppor t to 
educ ation sec tor reform programm e  (2 006–1 0)

19.   As can be seen from the information provided in the tables below, although three out of 
the   fo u r  ind icato rs   u sed   in  the  pove r t y   red uc t ion   bud ge t  s uppo r t   p rogram m e  2 006–08 
have ac hieved  th eir t arget, the suppor t to e ducati on  s ec tor  re fo r m  p rogram m e h as not 
yet achieved the planned results and indicators do not show the planned improvements. 
fo r eig ht ou t of  t he ten indic ator s th e  targ e t wa s  n ot  ac hie ved  i n 2 008/ 09 . th e n umber 
of indicator targets not achieved or par tly achieved increased from six to eight bet ween 
2007/08 and 2008/09, demonstrating a negative trend. the draf t mid-ter m review (mtr) 
came to the conclusion that ‘ sBs is mostly off track , i.e. only a minorit y of sBs indicators 
have been globally achieved, many of which are behind schedule, and only in a minorit y 
of  case s are ad equate measures t ak e n  wh en  ( th e y  are  th re aten in g  to  go)  o ff   t rack ’. 

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An n ex   v

comparison bet ween expec te d and   achieved  results 

Poverty reduction indicators for PRBS03 — Education (indicators used for the December 2008 disbursement only) 

Indicator

Net primary school enrolment rate

Girl:boy ratio in secondary education

Percentage of students passing primary school leavers’ exam

Transition from standard 7 to form 1

Baseline 2005 
(a 2006)
(%)

Target for 2006 
(b 2007)
(%)

Data for 
2006/07 (%)

Target achieved/ 
not achieved

96,1a

88,7a

61,8

49,3

97,5b

90 b

62,5

54

97,3

87,8

70,5

60,3

Achieved

Not achieved

Achieved

Achieved

Support to education sector reform programme (2006–10)

Indicator

Baseline data 
2005

2008/09

Targets

Reduction of cross-district disparities in the net enrolment 
ratio in primary education

8,8 %

7 % (2007)

Result

3,98 %

Target achieved/ 
not achieved

Achieved

Pupils:grade A or diploma teachers in primary education

88

50 (2007)

63

Not achieved

Reduction of cross-district disparities in pupils:teacher ratio 
in primary education

Pupils:textbook in primary schools

Percentage of girls passing primary school leavers’ exam

12,9 %

8,6 % (2007)

13,3 %

Not achieved

3:1

54,6

1:1 (2007)

65 (2007)

3:1

45

Not achieved

Not achieved

Gross enrolment ratio (GER) in secondary

GER in form 
1 to form 4

GER in form 
5 to form 6

Gross enrolment ratio of girls in forms 5 and 6

Percentage of students passing the form 4 examination 

Public expenditure on education as a percentage of total 
public expenditure

Percentage of local government administrations awarded 
clean audits by the National Audit Office

15,90 %

30 % (2007)

36,2 %

Achieved

2,40 %

6,5 % (2007)

0,9 %

89,2

18,7 
(FY 2005–06)

53 
(FY 2005–06)

2 % (2007)

93 (2007)

25,0 
(FY 2007–08)

75 
(FY 2006–07)

4,0 %

2,9 %

90,3

19,8

54  
(FY 2007–08)

Not achieved

Achieved

Not achieved

Not achieved

Not achieved

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20.  

the net pr imar y enrolment rate increased from 59 % in 2000 to 97,3 % in 2006 and then 
decre as ed  sl ig htl y  to   95 ,9  %  in  2 0 0 8 . th e  hig h  en rolme nt   rate s  also  h ave  to   be   seen  i n 
the contex t of increasing dropout rates, which have now near ly retur ned to the level of 
20 03.  the  nu mb er  o f  st u dents   in crease d  by   1 2   %   per   ye ar   f ro m  2 0 00   to  200 3  an d  since 
then has increased by some 4 % per year. Equal access for girls and boys has almost been 
achie ved,  w hile  th e  p ro p or tion   of  ch ild re n  w it h  di sa bi li ti es   in   pr i m ar y  sch ool  declined 
fro m 20 07  to  200 8 and has gen erally  on ly  m ade  s low progres s.

21.   mD G   2   g a ve   t h e   G o ve r n m e n t   o f   ta n z a n i a   (G ot )   a n   i n c e n t i ve   t o   p a y   m o re   a t t e n t i o n   t o 
enrolment than to the qualit y of education. Qualit y indicators show either a downwards 
trend or are at risk . the ratio between the number of students star ting school with those 
p a s s i n g   st a n d a rd   v i i  ( co h o r t   co m p l e t i n g   st a n d a rd   v i i)   d e c re a s e d   f ro m   7 0   %   i n   2 0 0 0   to 
62,4 % in 2008. this evolution has to be seen in the contex t of the implementation of the 
free primar y school polic y in 2002, which increased the number of students dramatically 
but with a decline in education qualit y. the pr imar y completion rate (standard  vii exam 
pas s  rate)   inc re ased  fro m  22   %  in   2 0 0 0   to  5 4 ,2   %  i n   20 0 6   an d  t h en   decreased   to  52,7  % 
in 2007. the pr imar y school pupils:tex tbook ratio of 3:1 for basic education was in 2008 
still the same as agreed bet ween the Ec and the G o t in the  csp 2001–07 of  m arch 2002. 
th e   r a t i o   b e t we e n   p r i m a r y   s c h o o l   p u p i l s   a n d   c l a s s ro o m s   h a d   i m p ro ve d   i n   2 0 0 7   ( 7 7 : 1 ) 
c o m p a re d   w i t h   2 0 0 6   ( 9 2 : 1 ) .   ho we ve r,   i n   2 0 0 8   ( 1 0 9 : 1 )   i t   w a s   a g a i n   s i g n i f i c a n t l y   a b o ve 
the  le vel  o f 20 06 .

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An n e x   v i

Pr oGr e s s  to wAr d s   e n s u r i nG   Pr i mAr y   e d u c At i o n   i n  t h e 
co u n t r i e s   e x Am i n e d

Country

Indicator

Bangladesh

Burkina Faso

Liberia

Namibia

Nepal

Niger

Pakistan

Tanzania

Net enrolment rate, total

Completion rate, total

Net enrolment rate, total

Completion rate, total

Net enrolment rate, total

Completion rate, total

Net enrolment rate, total

Completion rate, total

Net enrolment rate, total

Completion rate, total

Net enrolment rate, total

Completion rate, total

Net enrolment rate, total

Completion rate, total

Net enrolment rate, total

Completion rate, total

Source: Unesco.
Lack of data for Liberia partly due to the recovering from 14 years of civil war.
Number in italics: data from another year.
Completion rate as measured by gross intake ratio to the last grade of primary.

2000

N/A

59,5

36,0

25,1

42,0

N/A

88,8

91,6

65,0

63,2

26,7

17,9

54,0

N/A

52,9

57,2

Year

2005

87,2

61,1

45,3

31,1

N/A

N/A

89,6

86,2

79,2

76,0

42,2

29,3

64,7

60,8

90,2

55,0

2008

85,5

54,5

60,1

38,0

31,0

54,7

89,0

80,8

80,0

78,2

49,5

37,9

66,1

60,3

99,3

82,6

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An n e x   v i i

Pr oGr e s s  to wAr d s   Ge n d e r   PAr i t y   i n  t h e   co u n t r i e s 
e x Am i n e d

Country

Indicator

Gender parity index for net enrolment rate. Primary

Net enrolment rate. Primary. Female

Bangladesh

Net enrolment rate. Primary. Male

Completion rate. Primary. Female 

Completion rate. Primary. Male 

Gender parity index for net enrolment rate. Primary

Net enrolment rate. Primary. Female

Burkina Faso

Net enrolment rate. Primary. Male

Completion rate. Primary. Female 

Completion rate. Primary. Male 

Gender parity index for net enrolment rate. Primary

Net enrolment rate. Primary. Female

Liberia

Net enrolment rate. Primary. Male

Completion rate. Primary. Female 

Completion rate. Primary. Male 

Gender parity index for net enrolment rate. Primary

Net enrolment rate. Primary. Female

Namibia

Net enrolment rate. Primary. Male

Completion rate. Primary. Female 

Completion rate. Primary. Male 

Gender parity index for net enrolment rate. Primary

Net enrolment rate. Primary. Female

Nepal

Net enrolment rate. Primary. Male

Completion rate. Primary. Female 

Completion rate. Primary. Male 

2000

N/A

N/A

N/A

61,4

57,5

0,71

29,8

42,0

20,6

29,4

0,77

37,0

48,0

N/A

N/A

1,06

91,3

86,3

97,4

85,8

0,79

57,0

72,0

54,6

71,3

Year

2005

1,05

89,5

85,0

63,3

59,0

0,80

40,1

50,4

26,9

35,1

N/A

N/A

N/A

N/A

N/A

1,06

92,2

86,9

90,1

82,3

0,87

73,8

84,4

72,3

79,6

2008

1,02

86,3

84,7

57,1

51,9

0,86

55,7

64,4

33,5

42,3

0,93

30,0

32,0

49,8

59,7

1,05

91,1

86,9

85,8

75,9

0,97

78,0

81,0

77,5

78,8

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2000

0,70

21,9

31,2

14,4

21,3

N/A

N/A

N/A

 N/A

 N/A

1,03

53,6

52,3

56,0

53,9

Year

2005

0,72

35,2

48,8

23,1

35,1

0,76

55,7

73,3

50,4

70,6

0,98

89,4

91,0

53,9

56,1

2008

0,78

43,2

55,4

31,5

43,9

0,83

59,7

72,2

53,4

66,9

1,00

99,1

99,6

80,8

84,5

An n ex   v i i

Country

Indicator

Gender parity index for net enrolment rate. Primary

Net enrolment rate. Primary. Female

Niger

Net enrolment rate. Primary. Male

Completion rate. Primary. Female 

Completion rate. Primary. Male 

Gender parity index for net enrolment rate. Primary

Net enrolment rate. Primary. Female

Pakistan

Net enrolment rate. Primary. Male

Completion rate. Primary. Female 

Completion rate. Primary. Male 

Gender parity index for net enrolment rate. Primary

Net enrolment rate. Primary. Female

Tanzania

Net enrolment rate. Primary. Male

Completion rate. Primary. Female 

Completion rate. Primary. Male 

Source: Unesco.
Lack of data for Liberia partly due to the recovering from 14 years of civil war.
Number in italics: data from another year.
Completion rate as measured by gross intake ratio to the last grade of primary.

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rEpl Y of thE 
commission

v.
m easur ing lear ning achievements (indicat-
i n g   t h e   q u a l i t y   o f   t h e   e d u c at i o n   s ys te m )   i s 
a   c h a l l e n g e   i n   m o s t   c o u n t r i e s .  t h i s   i n f o r -
m a t i o n   i s   n o t   u s u a l l y   p a r t   o f   t h e   r e g u l a r 
e d u c a t i o n   m a n a g e m e n t   i n f o r m a t i o n   s y s -
te m   ( Em i s)   d a t a ;   o f te n   i t   re l i e s   o n   s u r ve ys 
w h i c h   a r e   d e p e n d e n t   o n   e x t e r n a l   f i n a n c -
i n g .   i t   i s   f o r   t h i s   r e a s o n   t h a t  ‘p r o x i e s’  a r e 
re g u l a r l y   u s e d   to   c a p t u re   q u a l i t y   i m p rove -
m e n t s .   s t r e n g t h e n i n g   s t a t i s t i c a l   s y s t e m s 
i n   g e n e r a l,   a n d   E m i s   i n   p a r t i c u l a r,   i s   co m -
mon ly par t of th e commiss ion’s suppor t to 
sec tor policie s.

m o v i n g   t o w a r d s   u s i n g   m o r e   i n d i c a t o r s 
f o r   e d u c a t i o n   q u a l i t y   w i l l   r e q u i r e   s e t t i n g 
u p   m e a s u r i n g   s y s t e m s   a n d   b u i l d i n g   u p 
a n d   s t re n g t h e n i n g   n a t i o n a l   Em i s  s ys te m s. 
A s   t h e   c o u r t   i t s e l f   i m p l i e s   i n   i t s   o b s e r v a -
t i o n ,   t h e r e   i s   a   l o t   t h a t   n e e d s   t o   b e   d o n e 
i n   c o u n t r i e s   i n   t h i s   c o n t e x t .   i n   a d d i t i o n , 
w e   w o u l d   l i k e   t o   p o i n t   o u t   t h a t   t h e   c o m -
m i s s i o n’s   s t a f f   w o r k i n g   d o c u m e n t   (sW D ) 
‘m o re   a n d   b e t te r   e d u c a t i o n   i n   d e ve l o p i n g 
countr ies’ issued in februar y 2010 and dis-
t r i b u te d   to   d e l e g at i o n s   gi ve s   g u i d a n ce   o n 
qualit y iss ues  for  polic y di alogue.

v i.
co n ce r n i n g   e d u c at i o n   e x p e r t i s e,   t h e   co m -
m i s s i o n   a c k n ow l e d g e s   t h at   t h e re   a re   s t a f f -
i n g   g a p s   i n   s o m e   d e l e g at i o n s.   s e ve ra l   d e l -
e g a t i o n s   h a v e   m a d e   a g r e e m e n t s   u n d e r 
t h e   E U  ‘d i v i s i o n   o f   l a b o u r ’  ( D ol)   p o l i c y   t o 
d e l e g a t e  ‘s e c t o r   p o l i c y   d i a l o g u e’  t o   a n   E U 
m e m b e r   st a t e ,   w h e r e   t h e y   h a v e   t h e   r e l e -
vant s ec toral exper tis e. 

executive summAry

iii.
t h e   c o m m i s s i o n   n o t e s   t h e   s i g n i f i c a n t 
p ro gre s s   t h a t   h a s   b e e n   m a d e   tow a rd s   t a r -
gets in the education sec tor. i n addition to 
4 5   %   o f   i n d i c a t o r s   b e i n g   f u l l y   a c h i e ve d,   a 
f u r t h e r   3 0   %   we re   c l e a r l y   m a k i n g   p ro gre s s 
a s   n o te d   by   t h e   co u r t   i n   p o i nt   1 8 .  th i s   i s   a 
re m a r k a b l e   a c h i e ve m e nt   by   p a r t n e r   co u n-
t r i e s   o n   i n d i c a t o r s,   m a ny   o f   w h i c h   n e e d   a 
l o n g   t i m e   s p a n   to   s h ow   c h a n g e.   m a i nt a i n -
i n g   g o o d   p ro gre s s   i s   a n   e ve n   b i g g e r   c h a l -
lenge in countr ies with quick demographic 
g r o w t h .   t h e   c o m m i s s i o n   a c k n o w l e d g e s 
t h a t   m o r e   e f f o r t   i s   n e e d e d   t o   i m p r o v e 
e d u c a t i o n   q u a l i t y   a n d   i s   n o w   w o r k i n g   t o 
a d d re s s   t h i s   i n   p a r t n e r s h i p   w i t h   E U   m e m -
ber states. 

iv.
t h e   p ro g r a m m i n g   o f   t h e   1 0 t h   E Df  i n   s u b -
sa h a ra n   Af r i c a   a ro s e   o u t   o f   d e t a i l e d   co u n -
t r y - b y - c o u n t r y   p r o c e s s e s   a n d   a n a l y s i s . 
G e n e r a l   b u d g e t   s u p p o r t   ( G Bs)   t e n d e d   t o 
c o n t i n u e   i n   t h o s e   c o u n t r i e s   w h e re   e d u c a-
t i o n   w a s   n o t   p r o p o s e d   a s   a   f o c a l   s e c t o r 
( e. g.  ta n z a n i a ,   Z a m b i a ) .  W h i l e   i t   h a s   b e e n 
t h e   c o m m i s s i o n’s   a p p r o a c h   t o   e m p h a s i s e 
t h e   s o c i a l   s e c t o r s   i n   t h e   d e f i n i t i o n   o f   t h e 
s p e c i f i c   i n d i c ato r s   o f   i t s   G Bs  p ro gra m m e s, 
i t   s h o u l d   b e   r e c o g n i s e d   t h a t   s u c h   p r o -
grammes are never theless grounded in the 
f u l l   ra n g e   o f   d e ve l o p m e nt   co n ce r n s   o f   t h e 
beneficiar ies. 

r egarding the cour t ’s obser vation on safe -
g u a r d s ,   p o o l e d   f u n d i n g   a n d   b u d g e t   s u p -
por t are t wo different financing modalities 
i n   w h i c h   r i s k s   a n d  ‘r i s k   m i t i g a t i n g   m e a s -
u r e s ’  w i l l   d i f f e r   a n d   a r e   n o t   e a s i l y   c o m -
p a re d.   h owe ve r,   r i s k   a s s e s s m e n t   i s   a l w ays 
par t of programme preparation.  i n the case 
of budget suppor t, r isks are addressed and 
m i t i g a t e d   t h r o u g h   d i a l o g u e   a n d   c a p a c i t y 
d e v e l o p m e n t ,   o f t e n   p r o v i d e d   t h r o u g h   a 
j o i nt   a n d   co o rd i n ate d   m a n n e r   by   i nvo l ve d 
d o n o r s.  th e   s t ro n g e s t   m i t i g at i n g   m e a s u re 
is  when  t he  co mmis sio n  re ser ves  th e  r ight 
to withhold disbursements if the eligibilit y 
condit ions  are  n ot  ful fil led.

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introduction

Audit scoPe  And APProAch

1.
the mDGs are ‘joint commitments bet ween 
international donor community and par tner 
gover nments. these  goals  are  aspirational 
for many countries and as indicated by the 
cour t in Annex iii, ‘EU-funded inter ventions 
o f t e n   p r o v i d e   a   l i m i t e d   s h a r e   o f   a l l   t h e 
overall resources available’. 

5.
hav i n g   re c o g n i s e d   t h e   c h a l l e n g e   o f   q u a l -
ity in education, the commission issued the 
s t a f f   w o r k i n g   d o c u m e n t   (sW D )  ‘m o r e   a n d 
better education in developing countries’ in 
februar y 2010, which gives polic y guidance 
to delegations on this issue.

6.
i n   a d d i t i o n   to   p rov i d i n g   f u n d i n g,   t h ro u g h 
i t s   c o n v e n i n g   p o w e r,   t h e   c o m m i s s i o n   i s 
a l s o   p l a y i n g   a n   i m p o r t a n t   r o l e   i n   c o o r d-
inating EU member states, promoting joint 
a p p r o a c h e s   a n d   f a c i l i t a t i n g   d i v i s i o n   o f 
labour  as  regards  per tinent  needs,  sec tors 
and regions.

8.
the  cour t  has  obser ved  a  decrease  in  sup -
p o r t   t o   e d u c a t i o n   i n   t h e   1 0 t h   E Df ,   w h i c h 
reflects the outcome of a series of decisions 
at  countr y  level  including  the  selec tion  of 
o t h e r   p r i o r i t y   s e c to r s,   a n d   e n h a n ce d   d i v i -
s i o n   o f   l a b o u r   a n d   c o o r d i n a t i o n   b e t w e e n 
donors.

1 4.
th e   co m m i s s i o n   u n d e r l i n e s   t h at   co o p e ra -
t i o n   w i t h   p a r t n e r   c o u n t r i e s   i s   b a s e d   o n 
m u t u a l   t r u s t   a n d   m u t u a l   a c c o u n t a b i l i t y, 
with the par tner countr y carr ying the main 
reponsibilit y  for  implementation  of  polic y 
a n d   s u b s e q u e n t   a c h i e v e m e n t   o f   r e s u l t s . 
the foreseen outcomes are agreed together 
with  the  par tner  government,  in  coordina-
tion with other donors also contributing to 
t h e   s e c t o r.   A s   m e n t i o n e d   b y   t h e   c o u r t   i n 
A n n e x   i i i,   t h e   co m m i s s i o n’s   f i n a n c i a l   s u p -
p o r t   t o   e d u c a t i o n   i s   n o r m a l l y   o n l y   a   f r a c -
tion of the national budget for education. 

observAtions

18.
t h e   c o m m i s s i o n   n o t e s   t h e   s i g n i f i c a n t 
p ro gre s s   t h at   h a s   b e e n   m a d e   towa rd s   t a r-
gets. the  long-term  time  frame  needed  for 
t a r g e t s   t o   b e   m e t   a n d   t h e   c h a l l e n g e s   o f 
demographic  growth  should  also  be  borne 
in  mind  when  inter preting  the  results. the 
commission ack nowledges that more effor t 
is needed to improve education quality and 
is   now  wo r k i ng  to  ad dress   this   in   par tne r-
ship with EU m ember states.

19.
t h e   i s s u e   o f   e n s u r i n g   s u s t a i n a b i l i t y   h a s 
b e e n   —   i n   a d d i t i o n   t o   o w n e r s h i p   a n d 
r e d u c t i o n   o f   t r a n s a c t i o n   c o s t s   —   a   f a c t o r 
i n f l u e n c i n g   t h e   m ove   towa rd s   s e c to r-w i d e 
a n d   p ro gra m m e - b a s e d   a p p ro a c h e s,   w h i c h 
a l l ow   t h e   a p p l i c at i o n   o f   a   m i x   o f   d i f fe re nt 
a i d   m o d a l i t i e s   w i t h i n   a   p o l i c y   a n d   b u d g e t 
framewor k agreed with  t he gover n m ent. 

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b ox 1 – bu rk ina  f a so : ex am ple  o f 
projec t with problem s  of  s us ta in abili t y
Difficulties  in  coordinating  donor  suppor t 
(for  example,  for  water  supply  for  schools) 
w i t h   p u b l i c   p ro gra m m e s   ( s u p p o r t   fo r   c a n-
t e e n s )   a r e   p r e c i s e l y   t h e   r e a s o n s   w h y   t h e 
m a j o r i t y   o f   t h e   co m m i s s i o n’s   s u p p o r t   h a s 
switched from projec t to sec tor approach.

25.
li t e r a c y   r a t e s   a r e   v e r y   r a r e l y   u s e d   a s   a 
m e a n s   t o  ‘i n c e n t i v i s e’  p e r fo r m a n c e   i n   t h e 
sec tor, due to the long time frame required 
for  progress  to  be  achieved.  Ensur ing  con -
tinual  monitor ing  of  literac y  rates  is,  how-
ever,  par t  of  the  overall  monitoring  frame -
work for the sec tor. 

i n   B u r k i n a   fa s o,  ‘e d u c a t i o n   c e n t r e s’  w e r e 
d e v o t e d   t o   d i f f e r e n t   e d u c a t i o n   r e l a t e d 
ac tivities in order to respond to the chang-
i n g   n e e d s .   B u i l d i n g s   w e r e   r e c o n v e r t e d 
into other uses in the sec tor, such as voca-
tional training centres which are also much 
needed facilities.

22.
th e   co m m i s s i o n   wo u l d   l i k e   to   c l a r i f y   t h a t 
ta b l e   2   o n l y   s h o w s   p r o g r e s s   i n   t w o   c a t -
egories: ‘fully achieved’ and ‘not achieved’. 
E m p l o y i n g   a   m o r e   d y n a m i c   a p p r o a c h , 
t h e   c o m m i s s i o n   w o u l d   l i k e   t o   h i g h l i g h t 
t h e   i m p o r t a n c e   o f   p r o g r e s s   m a d e   o n   a 
n u m b e r   o f   i n d i c a t o r s ,   i n c l u d i n g   t h o s e 
which  are  not  fully  achieved.  for  instance, 
in the case of nepal, according to Annex  v, 
s e v e n   o u t   o f   t h e   e i g h t   i n d i c a t o r s   m a r k e d 
a s  ‘n o t   a c h i e ve d ’,   s h ow   a   s u b s t a nt i a l   p o s i -
t i ve   t re n d,   t h o u g h   n o t   re a c h i n g   t h e   e x a c t 
t a rg e t .   A l l   t h e   t h re e   i n d i c a t o r s   m a r k e d   a s 
‘n o t   a c h i e v e d ’  f o r   n i g e r,   s h o w   v e r y   g o o d 
progress being ver y close to the target val-
ues. 

23.
i n   a d d i t i o n ,   t h e   c o m m i s s i o n   a c k n o w l -
e d g e s   t h a t   s i g n i f i c a n t   p ro g re s s   w a s   m a d e 
i n   n e t   e n r o l m e n t   r a t e   ( n E r )   i n   n e p a l   a n d 
in gross enrolment rate (GEr) in  n iger (see 
An nex v ).

26.
t h e   c o m m i s s i o n   w e l c o m e s   t h e   c o u r t ’s 
positive  findings  on  enrolment  since  2000, 
a s   we l l   a s   t h e   re co gn i t i o n   o f   t h e   d i f fe re nt 
i n t e r n a l   a n d   e x t e r n a l   f a c t o r s   w h i c h   a f fe c t 
completion rates. substantial demographic 
g r o w t h   s h o u l d   a l s o   b e   m e n t i o n e d   a s   a n 
ex ter nal  fac tor  affec ting  the  pupil:teacher 
r a t i o   i n   a   c o u n t r y   a n d   c o n s e q u e n t l y   t h e 
q u a l i t y   o f   e d u c a t i o n   b e i n g   d e l i v e r e d . 
t h e   c a s e   o f   B u r k i n a   fa s o   i l l u s t r a t e s   h o w 
p ro gre s s   i n   e n ro l m e n t   i s   o f te n   d i f f i c u l t   to 
be  maintained  in  ter ms  of  completion  due 
in some par t to fac tors ex ternal to the edu-
cation system.

27.
the commission agrees that the millennium 
d e ve l o p m e nt   g o a l s   (mD G s )   a n d   Ed u c at i o n 
for All (Ef A) goals are not realistic for many 
of the world’s poorest countries to achieve 
b y   t h e   i n t e r n a t i o n a l l y   a g r e e d   t a r g e t   y e a r 
o f   2 0 1 5 .  th i s   i s   w hy   t h e   co m m i s s i o n   i n   i t s 
g u i d e l i n e s   e m p h a s i s e s   t h e   i m p o r t a n c e   o f 
s e t t i n g   t a r g e t s   t o g e t h e r   w i t h   t h e   p a r t n e r 
c o u n t r y,   t a k i n g   i n t o   a c c o u n t   t h e   c o u n t r y 
contex t. the targets should be realistic but 
also sufficiently ambitious: the aspirational 
n a t u r e   o f   t h e   mD G s   f o r   m a n y   c o u n t r i e s 
should always be borne in mind. 

28.
t h e   c o m m i s s i o n ’s   r e c e n t   s t a f f   w o r k i n g 
d o c u m e n t  ‘m o r e   a n d   b e t t e r   e d u c a t i o n   i n 
d e v e l o p i n g   c o u n t r i e s’  a c k n o w l e d g e s   t h a t 
demographic growth is a fac tor to be taken 
into account.

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29.
the commission agrees with the cour t that 
u s i n g   a   c o m b i n a t i o n   o f   f i n a n c i n g   m o d a l i -
ties enables a strengthened response to the 
needs of ‘hard to reach’ children.

b ox 2 – nam ibia :  the  e du c ation s ec to r 
programm e  doe s  not  su ff ic ie nt ly  fo c u s 
on the poore s t
t h e   c o m m i s s i o n ’s   s u p p o r t   t o   na m i b i a 
under the 9th European Development fund 
required monitoring of ‘prior ac tions’ which 
fo c u s e d   o n   e q u i t y   o b j e c t i ve s.  th e   i s s u e   o f 
the ‘school Development fund’ and ‘Educa-
tion Development fund’ have been raised in 
all annual reviews. the introduc tion of new 
s y s t e m s   ( s c h o o l   p ro f i l i n g   a n d   e a r l y   g r a d e 
r e a d i n g   a s s e s s m e n t )   h a v e   b e e n   a g r e e d 
upon through dialogue and their implemen-
tation  is  now  suppor ted  within  the  frame -
work of the 10th EDf sec tor polic y suppor t 
programme (spsp). 

bangladesh: the suppor t to non-formal 
primar y education projec t gives quality 
primar y education to hard-to -reach 
children
t h e   c o m m i s s i o n   w e l c o m e s   t h e   p o s i t i v e 
o b s e r v a t i o n s   o f   t h e   c o u r t   r e g a r d i n g   t h e 
E U - f u n d e d   n o n - f o r m a l   e d u c a t i o n   p r o j e c t 
in Ba nglad esh. 

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30.
t h e   fa s t   tr a c k   i n i t i a t i v e   (f t i)   i s   a   g l o b a l 
initiative  that  aims  to  improve:  the  qualit y 
of  national  education  sec tor  policies,  effi-
c i e n c y   o f   e x p e n d i t u r e ,   c a p a c i t y   d e v e l o p -
m e n t ,   d o n o r   c o o rd i n a t i o n ,   h a r m o n i s a t i o n 
and alignment as well as mobilising financ-
i n g   i n   s u p p o r t   o f   e n d o r s e d   s e c t o r   p l a n s . 
the fti financing mechanisms (trust funds) 
a re   a n   i m p o r t a n t   b u t   re l a t i ve l y   s m a l l   p a r t 
of  the  overall  financing  available  at  either 
countr y or especially global level. the con-
clusions of the fti evaluation repor t result 
m a i n l y   f ro m   l o o k i n g   a t   a g g re g a t e   f i g u re s 
at global level, and not from analysing and 
d raw i n g   co n c l u s i o n s   o n   s p e c i f i c   f t i  co u n -
tries or subgroups of fti countries.

co n c e r n i n g   t h e   i s s u e   o f  ‘i n h e re n t   t e n s i o n 
of the fti’s focus on primar y education and 
t h e   b ro a d e r   Ed u c at i o n   fo r   A l l   ( Ef A)   g o a l s’, 
t h e   s i t u a t i o n   h a s   c h a n g e d .   t h e   f t i  B o a r d 
decided in its meeting of 5 and 6 may 2010, 
that (i) in polic y dialogue, technical assist-
ance and capacity development, the fti will 
a d d re s s   t h e   w h o l e   s e c to r   a n d   ( i i )   t h a t   t h e 
fti  catalytic fund (a multi- donor trust fund 
of the fti) suppor t will cover all Ef A goals.

31.
t h e r e   i s   s t r o n g   a s s o c i a t i o n   b e t w e e n   p o v -
e r t y   a n d   g e n d e r   i n e q u a l i t i e s   i n   e d u c at i o n : 
g e n d e r   d i s p a r i t y   i s   i n v e r s e l y   r e l a t e d   t o 
we a l t h .   D i s p a r i t i e s   r i s e   fo r   g i r l s   b o r n   i n t o 
t h e   p o o r e s t   h o u s e h o l d s   ( s e e   E FA   g l o b a l 
mo nitorin g re por t  20 09) .

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Pakistan: Good prac tice in promoting 
gender equality in education — the 
nor thern Pakistan education programme
the commission welcomes the cour t ’s posi-
tive findings in pak istan which confirm that 
good results can be achieved with the right 
a p p r o a c h   a n d   e v e n   i n   c o n s i d e r a b l y   c h a l -
lenging environments. 

39.
th e   co m m i s s i o n   wo u l d   l i k e   to   c l a r i f y   t h a t 
ta b l e   4   o n l y   s h o w s   p r o g r e s s   i n   t w o   c a t -
egories: ‘fully  achieved ’  and ‘not  achieved ’. 
E m p l oy i n g   a   m o re   d y n a m i c   a p p ro a c h ,   t h e 
c o m m i s s i o n   w o u l d   l i k e   t o   h i g h l i g h t   t h a t 
p r o g r e s s   h a d   b e e n   m a d e   o n   a   n u m b e r 
o f   i n d i c a t o r s ,   i n c l u d i n g   t h o s e   w h i c h   a r e 
d e s c r i b e d   a s   n o t   a c h i e v e d .   i n   t h e   c a s e   o f 
ne p a l ,   o u t   o f   t h e   f i v e   q u a l i t y   i n d i c a t o r s 
marked  as ‘not  achieved’,  four  show  a  clear 
positive trend. the one indicator in niger  — 
pupil:table ratio in rural areas — shows sig-
nificant progress, almost achieving the tar-
get (see Annex v ).

41.
te a c h e r ’s   re c r u i t m e nt   i s   a   m a j o r   c h a l l e n g e 
i n   co u nt r i e s   e x a m i n e d,   a s   i t   h a s   i m p o r t a nt 
implications in ter ms of sustainable public 
f i n a n c i n g.   c o n s i d e r i n g   t h a t   e x t e r n a l   s u p -
p o r t   i s   o f t e n   m a r g i n a l   i n   f i n a n c i a l   t e r m s , 
t h e   re c u r re n t   p a r t   o f   t h e   b u d g e t   w i l l   n o r -
mally depend on the availabilit y of internal 
domes tic  re sources.

fo r   B a n g l a d e s h ,   t h e   c o m m i s s i o n   a g r e e s 
w i t h   t h e   c o u r t .   i n s t i t u t i o n a l   c a p a c i t y 
b u i l d i n g   i s   p a r t   o f   t h e   c o m m i s s i o n   s u p -
p o r t .   ho we ve r,   t h e   t r a n s fo r m a t i o n   i n d e e d 
t a k e s   l o n g e r   t o   y i e l d   t h e   i n t e n d e d   e f f i -
c i e n c y   g a i n s   b u t   p r o g r e s s   h a s   b e e n   m a d e 
a s   f o r   e x a m p l e   e v i d e n c e d   b y   i n c r e a s e d 
leader sh ip an d spen ding capac it y.

33.
pu b l i c   p o l i c i e s   a n d   g ove r n a n ce   i n i t i at i ve s 
to  remove  the ‘economic  barriers’  can  help 
ove rco m e   g e n d e r   i n e q u a l i t i e s,   b u t   re m ov-
ing socio - cultural barriers to equity is more 
difficult.

34.
i n   ne p a l ,   p r i v a t e   s c h o o l s   a r e   n o t   d i r e c t l y 
s u p p o r t e d   t h r o u g h   t h e   e d u c a t i o n   s e c t o r 
p r o g r a m m e   o f   t h e   g o v e r n m e n t ,   w h i c h   i s 
suppor ted by the EU and other donors.

35.
the commission agrees that increasing the 
propor tion and the number of female teach-
ers in schools can be an impor tant measure 
to   p ro m o te   g e n d e r   e q u a l i t y   i n   e d u c a t i o n . 
t h e   c o m m i s s i o n   w o u l d   l i k e   t o   o b s e r v e , 
h o w e v e r,   t h a t   t h e   r e c r u i t m e n t   o f   f e m a l e 
te a c h e r s   i n   r u r a l   a re a s,   e s p e c i a l l y   i n   l e a s t 
d e ve l o p e d   co u n t r i e s   s u c h   a s   ne p a l   w h e re 
literac y and availability of trained (women) 
teachers  are  low,  is  generally  constrained. 
fu r t h e r m o r e ,   s o c i o e c o n o m i c   c o n d i t i o n s 
a re   s u c h   t h a t   fe m a l e   t e a c h e r s   a re   u s u a l l y 
m o r e   e a s i l y   r e c r u i t e d   i n   u r b a n   a r e a s   b y 
pr ivate  schools,  also  because  they  tend  to 
offer better work ing conditions than public 
schools.

box 3 – niger: insufficient promotion of 
gender equality in education
t h e   co m m i s s i o n   a g re e s   t h a t   t h e   e nv i ro n -
m e n t   i n   n i g e r   i s   a   d i f f i c u l t   o n e   i n   w h i c h 
to  promote  gir ls’  education.  As  mentioned 
earl ier, public policies and governance ini-
tiatives (incentives, adequate  infrastructure) 
w h i c h   s e e k   t o   r e m o v e   e c o n o m i c   b a r r i e r s 
can help overcome gender inequalities, but 
re m ov i n g   s o c i o - c u l t u ra l   b a r r i e r s   to   e q u i t y 
is more difficult, requiring long-term politi-
cal commitment, leadership and legislation 
enforcing the equal rights of girls (EFA glo -
bal monitoring repor t 2009).

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8181

rEpl Y of thE 
commission

47.
in pak istan, the commission’s eligibility cri-
t e r i a   w e r e   a d d r e s s e d   t a k i n g   i n t o   a c c o u n t 
t h e   c o n c e p t   o f   d i r e c t i o n   o f   c h a n g e ,   a s 
m e n t i o n e d   i n   t h e   s e c t o r   p o l i c y   s u p p o r t 
programmes  ( spsp)  guidelines. the  nor th-
We s t   fro n t i e r   pro v i n c e   h a d   b e e n   wo r k i n g 
o n   t h e i r   s e c t o r   p l a n   s i n c e   2 0 0 6   w i t h   t h e 
direct suppor t from the commission in 2006 
and  more  recent  suppor t  from  the  G erman 
cooperation  o ffice  (Deutsche  G esellschaf t 
f ü r   te c h n i s c h e   Z u s a m m e n a r b e i t   —   GtZ ) . 
the  unforeseen  deterioration  of  the  secur-
ity situation in the province — and the fac t 
that  gover nment  changed  in  2008  —  were 
p a r t   o f   t h e   r e a s o n s   w h y   t h e   c o m p l e t i o n 
o f   t h e   e d u c at i o n   s e c to r   p l a n   wa s   d e l aye d. 
moreover, in the financing agreement there 
is a safeguard which stipulates that release 
of  the  first  EU  disbursement  will  be  condi -
t i o n a l   u p o n   c o m p l e t i o n   o f   t h e   e d u c a t i o n 
sec tor  plan.  following  the  adoption  of  the 
e d u c a t i o n   s e c t o r   p l a n   t h e   p rov i n c i a l   g ov -
e r n m e n t   s u b m i t t e d   a   re q u e s t   fo r   t h e   f i r s t 
tranche release in July 2010.

48.
ta n z a n i a’s   p ro gre s s   w i t h   t h e   i m p l e m e n t a-
t i o n   o f   p u b l i c   f i n a n c e   m a n a g e m e n t   (p fm) 
re fo r m s   m a d e   i t   e l i g i b l e   fo r   t h e   d i s b u r s e -
ment of sec tor budget suppor t funds at the 
t i m e   w h e n   t h e s e   we re   a p p rove d.   E f fe c t i ve 
m a n a g e m e n t   o f   p r e v i o u s   b u d g e t   s u p p o r t 
p ro g r a m m e s   w a s   o n e   o f   t h e   s i x   e l i g i b i l i t y 
criteria  that  were  positively  assessed  prior 
to   t h e   m i l l e n n i u m   d e ve l o p m e nt   g o a l   co n -
trac t.

42.
the education-related millennium develop-
m e n t   g o a l   (mD G )   i s   a b o u t  ‘c o m p l e t i o n’  o f 
primar y  education  so  this  requires  putting 
e m p h a s i s   n o t   o n l y   o n   a c c e s s   b u t   a l s o   o n 
q u a l i t y   m e a s u r e s .   ha v i n g   r e c o g n i s e d   t h e 
challenge of quality in education, the com-
mission issued the staff work ing document 
(sWD) ‘m ore and better education in devel -
o p i n g   c o u n t r i e s’  i n   fe b r u a r y   2 0 1 0 ,   w h i c h 
g i v e s   p o l i c y   g u i d a n c e   t o   d e l e g a t i o n s   o n 
this issue.

b ox 4 – ta nza nia : An exa mple  o f th e 
qu est for qua lit y
ta n z a n i a   h a s   s u c c e e d e d   i n   d o u b l i n g   t h e 
n u m b e r   o f   c h i l d r e n   i n   s c h o o l   i n   1 0   y e a r s 
f r o m   4   1 9 0   0 0 0   t o   8   6 2 4   0 0 0   ( Gm r  2 0 1 0 ) . 
c o n s e q u e n t l y ,   t h e   n u m b e r   o f   c h i l d r e n 
co m p l e t i n g   p r i m a r y   s c h o o l   h a s   a l s o   r i s e n . 
m a i nt a i n i n g   g o o d   p ro gre s s   i s   a n   e ve n   b i g-
ger c halle ng e  in countr ies  w ith  f a s t  de mo -
g r a p h i c   g r o w t h   b e c a u s e   o f   t h e   f i n a n c i a l 
r e s o u r c e s   r e q u i r e d   t o   s u s t a i n   p o s i t i v e 
trends in t he me dium and l ong  te r m.

E Df- f u n d e d   s u p p o r t   to   t h e   e d u c at i o n   s e c -
t o r   h a d   a   s t r o n g   f o c u s   o n   q u a l i t y   o f   e d u -
c a t i o n ,   a n d   p e r f o r m a n c e   i n d i c a t o r s   w e r e 
b a l a n c e d   b e t w e e n   a c c e s s   a n d   q u a l i t y   o f 
e d u c a t i o n .   i n d e e d   o n l y   4 3   %   o f   t h e   p e r -
f o r m a n c e - b a s e d   d i s b u r s e m e n t   w a s   p a i d 
o u t ,   d u e   t o   i n s u f f i c i e n t   a c h i e v e m e n t s   o n 
qualit y indicato rs.

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the commission assessment of programmes 
o f   r e f o r m   a n d   t h e i r   i m p l e m e n t a t i o n   a r e 
c o n t a i n e d   i n   t h e   d e l e g a t i o n   p fm  r e p o r t s 
w h i c h   fo r m   p a r t   o f   t h e   G Bs/sBs  d i s b u r s e -
ment  dossiers. the  countr y  strategy  paper 
indicates  that  slow  progress  due  to  lack  of 
ownership was being addressed by the gov-
ernment of tanzania through the design of 
a  more  relevant  programme  of  reform  that 
was then adopted in 2008. this followed an 
ex ternal evaluation of the pfm reform pro -
gr a m m e   t h a t   s h owe d   t h e   n e e d   fo r   a   m o re 
strategic approach and discussions with the 
donor community.

49.
t h e   c o m m i s s i o n   a c k n o w l e d g e s   t h a t   t h e 
programming guidelines (dated 2006) gave 
s o m e   i n d i c a t i o n s   fo r   t h e   i n i t i a l   p r o g r a m -
m i n g   o f   f u n d s   a t   c o u n t r y   l e ve l,   a s   p a r t   o f 
the preparation of countr y strategy papers 
a n d   i n d i c a t i ve   p ro gr a m m e s.   howe ve r,   t h e 
c o m m i s s i o n   n o t e s   t h a t   t h e   f i n a l   d e c i s i o n 
c o n c e r n i n g   t h e   f i n a n c i n g   m o d a l i t y   i s   n o t 
a l w a y s   m a d e   a t   t h e  ‘p r o g r a m m i n g   p h a s e’ 
but later as par t of the identification/formu-
lation  phases  of  the  programme  c ycle. the 
existing  sec tor  polic y  suppor t  programme 
(spsp) guidelines ( July 2007) clearly outline 
t h e   t h r e e   f i n a n c i n g   m o d a l i t i e s   w h i c h   c a n 
b e  u se d   to   s up p or t   e du c ati o n :  (1 )   p ro j e c t , 
( 2 )  p o o l e d   f u n d i n g,   a n d   ( 3 )   s e c to r   b u d g e t 
suppor t. 

82

rEpl Y of thE 
commission

t h e   c o m m i s s i o n   e m p l o y s   a   n u m b e r   o f 
i m p o r t a nt   r i s k   m i t i g at i o n   m e a s u re s   i n   t h e 
d e s i g n   a n d   i m p l e m e n t a t i o n   o f   i t s   b u d g e t 
suppor t  programmes. the  risk  of  misuse  of 
f u n d s   i s   m i t i g a t e d   t h r o u g h   t h e   s t r i n g e n t 
requirement  of  continuous  progress  in  the 
i m p l e m e n t a t i o n   o f   a   c r e d i b l e   p r o g r a m m e 
t o   i m p r o v e   p u b l i c   f i n a n c i a l   m a n a g e m e n t 
(pfm).  i n this contex t, the commission and 
other  budget  suppor t  donors  also  provide 
d e d i c a t e d   a s s i s t a n c e   t o   t h e   r e f o r m   a n d 
strengthening of key weak nesses in the pfm 
s y s t e m s   s u c h   a s   a u d i t   f u n c t i o n s ,   i n t e r n a l 
control  and  procurement. Where  the  com-
mission  notes  that  progress  is  insufficient, 
d i s b u r s e m e nt s   a re   w i t h h e l d   u nt i l   c re d i b l e 
reassurances or measures have been estab-
lished.

50.
i n  the  cour t ’s  obser vation  regarding ‘safe -
guards’, it should be noted that there is not 
a   u n i f o r m   a p p r o a c h   t o   t h e   i m p l e m e n t a -
t i o n   o f   p o o l e d   f u n d s.   t h e y   m ay   b e   i m p l e -
m e n t e d   t h r o u g h   p r o j e c t s   ( m a n a g e d   b y 
i n t e r n a t i o n a l   o r g a n i s a t i o n s )   o r   t h r o u g h 
d e c e n t r a l i s e d   m a n a g e m e n t   ( m a n a g e m e n t 
by   g ove r n m e nt )   w h i c h   wo u l d   re q u i re   p re -
l i m i n a r y   a u d i t   o f   f i n a n c i a l   m a n a g e m e n t 
systems. As under pooled funding, specific 
a u d i t s   o r   s u r v e y s   a r e   a l s o   p o s s i b l e   u n d e r 
sec tor budget suppor t, but need to be car-
r ied  out  by  and  under  the  author it y  of  the 
supreme audit institution of the respec tive 
co u nt r y.   i n   t h i s   co nte x t ,   t h e   co m m i s s i o n’s 
guidelines on budget suppor t explicitly rec-
ognise the value of selec ted audits of inter-
nal control systems to give fur ther insights 
into how to focus capacity building in pub -
lic finance management (pfm) and mitigate 
risks. moreover, the pfm annual monitoring 
repor t  that  sets  out  the  repor ting  require -
ments  for  the  commission  when  providing 
budget suppor t explicitly requires detailed 
repor ting on the supreme audit institution’s 
repor ting on the sec tor concerned and also 
on the anti- corruption mechanisms in place. 
th e s e   i s s u e s   a re   t a k e n   fo r wa rd   i n   t h e   d i a-
logue on pfm in the respec tive countries.

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8383

rEpl Y of thE 
commission

54.
th e   m i d - te r m   e va l u at i o n   o f   t h e   fa s t  tra c k 
i nitiative  ( fti),  whilst  interesting  and  use -
f u l ,   p l a c e s   d i s p r o p o r t i o n a t e   a t t e n t i o n   t o 
f i n a n c i a l   f i g u r e s   a t   t h e   g l o b a l   a g g r e g a t e 
level at the expense of analysing impor tant 
c o n t r i b u t i o n s   m a d e   b y   t h e   f t i  c a t a l y t i c 
fu n d   ( a   m u l t i - d o n o r   t r u s t   f u n d   o f   t h e   f t i) 
to individual fti- endorsed countries.  nepal, 
r wanda, Burk ina faso and senegal are good 
examples of such countries. impor tant con-
tributions  of  the  fti  were  missed  as  a  con -
sequence.

55.
c o u n t r i e s   a p p l y i n g   f o r   f t i  f u n d i n g   a r e 
expected to show their commitment to edu-
cation sector reform, through an increase in 
t h e   s e c to r ’s   s h a re   o f   t h e   n a t i o n a l   b u d g e t . 
no t   a l l   t h e   co u nt r i e s   m ay   b e   i n   a   p o s i t i o n 
to achieve this target at the same pace but 
they need to show a positive upward trend. 
i n   t h e   c a s e   o f   li b e r i a ,   f o r   e x a m p l e ,   t h e 
countr y ’s application for funding (approved 
i n   m a y   2 0 1 0 )   s h o w s   a   s e r i o u s   a t t e m p t   t o 
i n c re a s e   t h e   re s o u rce s   fo r   e d u c at i o n   f ro m 
13,9 % in 2010 to 18,7 % by 2015.

56.
A s   m e n t i o n e d   i n   p r e v i o u s   p o i n t s ,   m i l l e n -
nium development goals (mDGs) are aspir -
ational for many countries. the issue is not 
only  in  the  choice  of  indicators  but  also  in 
the target setting, par ticularly in the time -
lines. targets should reflec t a good balance 
between realism and ambition. they should 
i n d e e d   b e   s e t   t a k i n g   t h e   c o u n t r y   c o n t e x t 
into account.

51.
General budget suppor t (GBs) by definition 
d o e s   n o t   a i m   to   s u p p o r t   a   s p e c i f i c   s e c to r, 
but rather aims at providing additional dis-
cretionar y  resources  at  the  disposal  of  the 
p a r t n e r   g o v e r n m e n t   i n   o r d e r   t o   s u p p o r t 
m a c ro e co n o m i c   s t a b i l i t y   a n d   e n h a n ce   t h e 
prospec ts  of  delivering  its  public  expendi-
t u r e   p r o g r a m m e s   a c r o s s   t h e   f u l l   r a n g e   o f 
its development policies.  i n order to moni-
t o r   p ro g re s s   i n   i t s   p ove r t y   re d u c t i o n   p ro -
g r a m m e s ,   G Bs  p r o g r a m m e s   l o o k   a t   t h e 
achievement of the entire range of pover ty 
i n d i c a t o r s   i n   t h e   g o v e r n m e n t ’s   p e r f o r m -
ance assessment framework .  consequently 
t h e r e   a r e   l e s s   e d u c a t i o n   i n d i c a t o r s ,   a n d 
less intensive dialogue on education or any 
o t h e r   s p e c i f i c   s e c t o r,   t h r o u g h   G Bs,   t h a n 
through sec tor budget suppor t (sBs). 

53.
the commission considers that where par t-
ner governments give priorit y to education 
s p e n d i n g,   a n d   h ave   s o u n d   e d u c a t i o n   p o l-
i c i e s ,   t h e   v a l u e   a d d e d   o f   g e n e r a l   b u d g e t 
suppor t (GBs)  in thes e cas es  is  in e nsu r ing 
that social sec tors remain par t of the over-
a l l   p o l i c y   d i a l o g u e   w i t h   t h e   p a r t n e r   co u n -
tr y. GBs programmes t ypically use only key 
outcomes in education and health whereas 
s e c t o r   b u d g e t   s u p p o r t   p ro g r a m m e s   fo c u s 
o n   a   b ro a d e r   ra n g e   o f   s e c to r- s p e c i f i c   i n d i-
c a t o r s   t h e r e b y   a l l o w i n g   a   m o r e   i n - d e p t h 
dia logue.

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57.
the commission has recently issued a staff 
work ing document (sWD) ‘m ore and better 
education  in  developing  countr ies’  to  give 
guidance  on  the  multiple  facets  of  qualit y 
of education and on how to address it.

58.
t h e   c o m m i s s i o n   a g r e e s   w i t h   t h e   c o u r t ’s 
concern regarding the qualit y of statistical 
systems. Assessment of the quality of statis-
tical  systems  and  per for mance  monitor ing 
f ra m e wo r k s   a re   a l ways   c a r r i e d   o u t   a s   p a r t 
of the identification and formulation of sec-
tor polic y suppor t programmes (spsp).

59.
G o v e r n m e n t   r e p o r t s   a r e   n o t   t h e   u n i q u e 
monitor ing  tool. the  commission  may  rely 
on  different  tools  to  monitor  per for mance 
of the education sector: sector reviews, mis-
sions to the field, joint missions with other 
donors, specific repor ts from stakeholders. 
At the same time, the commission suppor ts, 
when relevant, statistical capacit y and sys -
t e m s   a s   k e y   i n s t r u m e n t s   f o r   m o n i t o r i n g , 
repor ting and strategic polic y-mak ing.

60.
the cour t has noted the suppor t given and 
t h e   p ro gre s s   m a d e   w i t h   re g a rd   to   s u p p o r t 
fo r   n a t i o n a l   s t a t i s t i c a l   s y s t e m s.  t h e   co m -
m i s s i o n   a c k n ow l e d g e s   t h at   f u r t h e r   e f fo r t s 
are in dee d nee ded.

84

rEpl Y of thE 
commission

6 1. (a)
i n  namibia,  there  were  impor tant  national 
p o l i c y   c h a n g e s .   i n   t h e   c o u r s e   o f   t h e 
n i n t h  E D f  i m p l e m e n t a t i o n ,   t h e   G o v e r n -
ment of the republic of namibia embarked 
o n   a   s e c t o r - w i d e   a p p r o a c h   s u p p o r t e d   b y 
a l l   d e v e l o p m e n t   p a r t n e r s ,   w i t h   t e c h n i c a l 
s u p p o r t   f r o m   t h e   E U   a n d   t h e   Wo r l d   B a n k . 
the Wor ld  Bank  mar ket- or iented  approach 
t o   e d u c a t i o n   s y s t e m s   h a p p e n e d   t o   m a t c h 
t h e   k n o w l e d g e - b a s e   e c o n o m y   o b j e c t i v e s 
e n s h r i n e d   i n   n a t i o n a l   d e v e l o p m e n t   p l a n 
‘ vision 2030’ and thus is reflec ted through-
out the national education programme. the 
ninth EDf was revisited to accommodate the 
shif t  to  sec tor-wide  approach  and  to  align 
with the World Bank monitoring modalities 
d e ve l o p e d   a ro u n d   p r i o r   a c t i o n s.   i t   i s   c o r -
rec t that while the national education pro -
gramme  covers  pr imar y  education,  it  does 
not elaborate much on this subsec tor.

6 1. (b)
t h e   c o m m i s s i o n   h i g h l i g h t s   t h e   p o s i t i v e 
t r e n d   w h i c h   h a s   t a k e n   p l a c e   i n   ne p a l   a s 
a   re s u l t   o f   t h e   i nt ro d u c t i o n   o f   a   d i s b u r s e -
m e n t   m e c h a n i s m   b a s e d   o n   p e r f o r m a n c e 
indicators linked to capacit y development. 
more recently a similar mechanism has been 
introduced in the new school sec tor reform 
p ro gra m m e   l i n k e d   to   p ro gre s s   a g a i n s t   t h e 
o b j e c t i v e   o f   r e d u c i n g   o u t - o f - s c h o o l   c h i l -
dren.

6 1. (c )
the EU education sector programme in pak i-
s t a n’s   si n d h   pr o v i n c e   s u p p o r t s   i m p o r t a n t 
r e fo r m s   i n   t h e   s e c t o r   a i m e d   a t   i m p r o v i n g 
education  ser vice  deliver y  (access/equit y/
qualit y). the improvement of ser vice deliv-
e r y   i n   t h e   s e c to r   d e p e n d s   o n   t h e   e f fe c t i ve 
i m p l e m e n t a t i o n   o f   t h e s e   r e f o r m s .   he n c e 
t h e   m a t r i x   fo c u s e s   o n   v i t a l   re fo r m   i n d i c a-
tors that must be achieved within the time 
span  of  the  programme  (as  a  prox y  for  the 
generally more medium-term improvement 
in outcomes).

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progress against outcome indicators (enrol-
m e n t ,   c o m p l e t i o n ,   s u r v i v a l   a n d   l e a r n i n g 
achievements in some cases) is assessed in 
joint reviews. 

W h e n   a g r e e i n g   p e r f o r m a n c e   m o n i t o r i n g 
a r ra n g e m e n t s   w i t h   p a r t n e r s,   t h e   co m m i s -
s i o n   co n s i d e r s   t h at   a   g o o d   m i x   o f   p ro ce s s 
and outcome indicators will provide a more 
c o m p re h e n s i ve   p i c t u re   o f   t h e   p ro g re s s   o f 
the countr y in implementing its sec tor pol-
ic y.

63.
i n   o r d e r   t o   a d d r e s s   t h e   s i t u a t i o n   r e g a r d -
ing  exper tise,  competencies and sk ills,  the 
co m m i s s i o n   h a s   l a u n c h e d   i n t e r n a l   a u d i t s 
on human resources in EU delegations and 
hQ ser vices. 

64.
th e   s i t u at i o n   d e s c r i b e d   by   t h e  co u r t   i l l u s-
t r a t e s   t h e   c h a l l e n g e s   t h e   c o m m i s s i o n   i s 
f a c i n g   i n   te r m s   o f   h u m a n   re s o u rce s   i n   t h i s 
par ticular area. for instance there are chal-
l e n g e s   a s s o c i a t e d   w i t h   t h e   r o t a t i o n   a n d 
m o ve m e n t   o f   s t a f f,   i n   p a r t i c u l a r   i n   f r a g i l e 
s i t u a t i o n s   a n d   w h e n   p ro g r a m m i n g   p r i o r i -
t i e s   c h a n g e   a t   c o u n t r y   l e v e l .   i n   a d d i t i o n , 
t h e   c o m m i s s i o n   r e m a i n s   c o m m i t t e d   t o 
i t s   z e r o - g r o w t h   p o l i c y   u p   t o   2 0 1 3   w h i c h 
i m p l i e s   s o m e   r a t i o n a l i s a t i o n   e f f o r t s   a n d 
adoptin g pr io r ities in  the redep l oy me nt o f 
re s o u rc e s.  t h e re   a re   f i n a l l y   f i n a n c i a l   c o n -
s t ra i nt s   w i t h   co s t   i n c re a s e s   ( s u c h   a s   s e c u -
r i t y   m e a s u r e s )   w h i c h   h a v e   n o t   b e e n   c o m -
p e n s a t e d   u n d e r   a p p r o p r i a t e   b u d g e t   l i n e s 
(BA a ppro pr iat io ns ).

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rEpl Y of thE 
commission

6 5.
W h i l e   i t   m i g h t   n o t   a l w a y s   b e   p o s s i b l e 
t o   r e s p o n d   i m m e d i a t e l y   t o   t h e   s t a f f i n g 
requirements  at  countr y  level,  delegations 
c a n   d raw   o n   t h e   t h e m a t i c   e x p e r t i s e   av a i l -
able at headquar ters. in addition, the com-
m i s s i o n   p r o v i d e s   a n n u a l l y   t r a i n i n g   a n d 
guidance on thematic issues for delegation 
s t a f f.   t h i s   t a k e s   t h e   fo r m   o f   w r i t t e n   g u i d -
a n c e ,   r e g i o n a l   s e m i n a r s ,   w e b - b a s e d   n e t -
wor k ing,  training  courses  and  other  lear n -
ing events.

6 9. (c)
the commission agrees with the cour t that 
technical cooperation cannot be envisaged 
without a strong demand and without gov-
e r n m e n t   l e a d e r s h i p.   le s s o n s   f ro m   e x p e r i -
e n ce s   i n   t h i s   a re a   s h ow   t h a t ,   w i t h o u t   t h i s 
o w n e r s h i p,   e x t e r n a l   i n s t i t u t i o n a l   s u p p o r t 
is unlikely to be used as the foundation for 
effec tive capacity development.

b ox 7   – burk ina f aso :  no  c apacit y 
d evelo pment  su ppo r t  could  be   p rovi ded 
by  the  co mmis sio n und er t he 2 005 –08 
bu dget  s upp or t
t h i s   e x a m p l e   o f   B u r k i n a   fa s o   i l l u s t r a t e s 
t h e   d i f f i c u l t i e s   m e nt i o n e d   by   t h e   co u r t   i n 
point 69(c) above. Without ownership, even 
t h e   m o s t   te c h n i c a l l y   p ro f i c i e nt   a n d   e xce l -
l e n t   c a p a c i t y   a s s e s s m e n t   i s   u n l i k e l y   to   b e 
used as foundation for subsequent capacity 
development.

7 0.
t h e   pa r i s   A g e n d a   c a l l s   f o r   a   h a r m o n i s e d 
a p p r o a c h   t o   c a p a c i t y   d e v e l o p m e n t .   t h e 
commission aims therefore to under take all 
ac tivities  in  this  area  jointly  with  the  G ov -
er nment  and  other  development  par tners. 
for  this  reason,  suppor t  to  capacit y  devel-
opment suppor t may be managed and coor-
dinated by other par tners through a clearly 
d e f i n e d   d i v i s i o n   o f   l a b o u r   w i t h i n   t h e   s e c -
tor.

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7 6.
the commission’s choice of aid modalit y in 
suppor t of focal sectors is based on a careful 
assessment of the expec ted effec tiveness of 
each instrument. Where the balance of risks 
a n d   b e n e f i t s   i s   co n s i d e re d   to   b e   i n   f avo u r 
of budget suppor t, this is the commission’s 
p r e f e r r e d   a p p r o a c h   t o   p r o c e e d   p r o v i d e d 
t h at   t h e   e l i gi b i l i t y   co n d i t i o n s   c a n   b e   ve r i -
fied. the  rigorous  verification  of  eligibilit y 
criteria both in advance of the launching of 
a ny   b u d g e t   s u p p o r t   p ro gra m m e   a s   we l l   a s 
t h e i r   re p e ate d   ve r i f i c at i o n   b e fo re   a ny   d i s-
b u r s e m e nt   i s   a n   i m p o r t a nt   r i s k   m i t i g at i o n 
f a c t o r.   W h e r e   t h e   c o n d i t i o n s   f o r   b u d g e t 
s u p p o r t   a r e   n o t   m e t ,   t h e   c o m m i s s i o n ’s 
g u i d e l i n e s   m a k e   i t   c l e a r   t h at   t h e   p o s s i b i l -
i t y   o f   p ro ce e d i n g   t h ro u g h   e i t h e r   a   p ro j e c t 
a p p r o a c h   o r   t h r o u g h   a   p o o l e d   f u n d i n g 
approach should be made on a case -by- case 
basis  by  compar ing  the  relevant  costs  and 
benefits of each inter vention modality. this 
also includes an assessment of the relative 
r i s k s   o f   e a c h   i n s t r u m e n t .   i n   a l l   c a s e s ,   t h e 
commission took full account of these risks 
in mak ing its eventual decision with regard 
to which aid modality to adopt.

conclusions And  
recommendAtions

71.
t h e   c o m m i s s i o n   n o t e s   t h e   s i g n i f i c a n t 
p ro gre s s   t h a t   h a s   b e e n   m a d e   tow a rd s   t a r -
gets in the education sec tor. i n addition to 
4 5   %   o f   i n d i c a t o r s   b e i n g   f u l l y   a c h i e ve d,   a 
f u r t h e r   3 0   %   we re   c l e a r l y   m a k i n g   p ro gre s s 
a s   n o t e d   b y   t h e   c o u r t   i n   p o i n t   1 8   ( f o r 
d e t a i l e d   i n fo r m a t i o n ,   s e e   A n n e xe s   v– v i i) . 
th i s   i s   a   re m a r k a b l e   a c h i e ve m e nt   by   p a r t-
ner countr ies on indicators, many of which 
n e e d   a   l o n g   t i m e   s p a n   t o   s h o w   c h a n g e . 
m a i n t a i n i n g   g o o d   p r o g r e s s   i s   a n   e v e n 
b i g g e r   c h a l l e n g e   i n   c o u n t r i e s   w i t h   q u i c k 
demographic grow th. 

74.
i m p rove m e nt s   i n   e d u c at i o n   q u a l i t y   ( l e a r n-
i n g   o u tco m e s )   a re   o f te n   d i f f i c u l t   to   m e a s -
u r e   a n d   a c h i e v e .   i t   i s   a n   i n h e r e n t l y   l o n g -
t e r m   p r o c e s s ,   r e q u i r i n g   e x p a n s i o n   a n d 
i m p r o v e m e n t   o f   t e a c h e r   t r a i n i n g   ( b o t h 
i n i t i a l   a n d   i n - s e r v i c e )   a n d   m a n a g e m e n t , 
c u r r i c u l u m   re fo r m ,   s e t t i n g   u p   a n d   r u n n i n g 
qualit y assu rance systems, etc. 

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83. (a)
General budget suppor t programmes focus 
on  the  achievement  of  the  entire  range  of 
p o v e r t y   i n d i c a t o r s   a n d   t h e r e f o r e   d o   n o t 
d i r e c t l y   s u p p o r t   e d u c a t i o n - s e c t o r   r e fo r m 
p r o g r a m m e s .   t h e y   d o   p r o v i d e   v a r i a b l e 
t ra n c h e s,   u s u a l l y   i n   h e a l t h   a n d   e d u c at i o n , 
which provide additional incentives to per-
formance in these critical areas. 

83. (b)
t h e   c o m m i s s i o n   a g r e e s   w i t h   t h e   c o u r t 
o n   t h e   n e e d   t o   p ay   m o re   a t t e n t i o n   t o   t h e 
q u a l i t y   o f   e d u c at i o n .  th e   co m m i s s i o n   h a s 
a l r e a d y   t a k e n   s t e p s   t o   a d d r e s s   t h e   i s s u e , 
n o t a b l y   t h r o u g h   t h e   st a f f   Wo r k i n g   D o c u -
ment ‘m ore  and  better  education  in  devel-
oping countries’, issued in f ebruar y 2010.

83. (c)
th e   co m m i s s i o n   d o e s   n o t   f u l l y   a gre e   w i t h 
the recommendation proposed by the cour t 
a t   8 3 ( c ) .   A s   s t a t e d   f o r   p o i n t   8 3 ( a )   a b o v e , 
g e n e r a l   b u d g e t   s u p p o r t   i s   n o t   a   f i n a n c -
i n g   m o d a l i t y   t h ro u g h   w h i c h   t h e   co m m i s -
sion  would  direc tly  suppor t  the  education 
s e c to r.   howe ve r,   t h e re   i s   a   p o te n t i a l   fo r   a 
wider and indirec t impac t on the education 
s e c to r   t h ro u g h   t h e   p rov i s i o n   o f   G Bs  to   b e 
determined on a case -by- case basis. 

t h e   e x i s t i n g   s e c t o r   p o l i c y   s u p p o r t   p r o -
g r a m m e s   g u i d e l i n e s   ( J u l y   2 0 0 7 )   c l e a r l y 
o u t l i n e   t h e   t h r e e   f i n a n c i n g   m o d a l i t i e s 
w h i c h   c a n   b e   u s e d   t o   s u p p o r t   e d u c a t i o n : 
(1) projec t, (2) pooled funding, and (3) sec-
t o r   b u d g e t   s u p p o r t .   t h e   c o m m i s s i o n   h a s 
b e g u n   t o   r e v i e w   a n d   a d a p t   t h e   g e n e r a l 
g u i d a n c e   a v a i l a b l e   f o r   ‘ p r o g r a m m e   a n d 
projec t c ycle management ’.  sec tor-specific 
aspects are intended to be captured, as well 
as guidance on the different aid modalities. 
r e v i s e d   g u i d a n ce   d o c u m e nt s   fo r   t h e  ‘p ro -
g r a m m e   a n d   p r o j e c t   c y c l e’  a r e   e x p e c t e d 
a t   t h e   e n d   o f   2 0 1 2 ,   fo l l o w i n g   o n e   ye a r   o f 
i n t e r n a l   c o n s u l t a t i o n   a n d   t e s t i n g   w i t h   E U 
delegations.

77.
the commission agrees with the cour t that 
the millennium development goals (mDGs) 
and Education for All (EfA) do not automat-
ically  represent  achievable  goals  for  many 
of the world’s poorest countries. this is why 
t h e   c o m m i s s i o n   i n   i t s   g u i d e l i n e s   e m p h a -
sises the impor tance of identifying the indi-
cators and setting the targets together with 
the par tner countr y, tak ing into account the 
countr y contex t. the targets should be real-
istic but also sufficiently ambitious.

t h e   c o m m i s s i o n   a g r e e s   w i t h   t h e   c o u r t 
t h at   m o re   at te nt i o n   s h o u l d   b e   p a i d   to   t h e 
i m p a c t   o f   d e m o gra p h i c   grow t h .  th e   co m -
mission’s staff work ing document ‘m ore and 
b e t te r   e d u c a t i o n   i n   d e ve l o p i n g   co u n t r i e s’ 
a c k n o w l e d g e s   d e m o g r a p h i c   g r o w t h   a s   a 
fac tor to be taken into account.

80.
the commission ack nowledges that in some 
c a s e s,   t h e re   a re   g a p s   i n   t h e   ava i l a b i l i t y   o f 
e d u c a t i o n   e x p e r t i s e   i n   d e l e g a t i o n s.   ho w -
e ve r,   s o m e   d e l e g a t i o n s   h ave   m a d e   a gre e -
m e n t s   u n d e r   t h e   E U   d i v i s i o n   o f   l a b o u r 
polic y  to  delegate  polic y  dialogue  to  a  EU 
m e m b e r   st ate   w h i c h   h a s   t h e   re l e va nt   s e c -
toral capacity.

81.
i n s t i t u t i o n a l   c a p a c i t y   d e ve l o p m e nt   i s   p a r t 
of the co mmis sio n’s sup p o r t .  neve r th eless 
i t   c a n n o t   s u cce e d   w i t h o u t   s t ro n g   d e m a n d 
a n d   g o v e r n m e n t   l e a d e r s h i p   a n d   r e m a i n s 
o n e   o f   t h e   m o s t   d i f f i c u l t   a re a s   i n   w h i c h   to 
a c h i e ve   p o s i t i ve   re s u l t s.  th e   pa r i s   Ag e n d a 
o f f e r s   a n   o p p o r t u n i t y   f o r   a   h a r m o n i s e d 
a p p r o a c h   t o   c a p a c i t y   d e v e l o p m e n t ,   a n d 
t h e   co m m i s s i o n   w i l l   m a k e   b e s t   u s e   o f   t h i s 
i n c l u d i n g   t h ro u g h   i t s   n e w   te c h n i c a l   co o p -
eration  st rate gy ( Bac k b o ne st rate g y ) . 

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83. (c) (iv)
t h e   re c o m m e n d a t i o n   re g a rd i n g   g u i d a n c e 
for ‘sec tor  per for mance  review ’  is  not  only 
relevant for one financing modalit y but for 
all three modalities included under the sec-
tor  polic y  suppor t  programme.  i n  addition 
t o   p r o v i d i n g   g u i d e l i n e s ,   t h e   c o m m i s s i o n 
intends  to  continuously  improve  the  guid -
ance and suppor t it provides (remotely and 
at countr y level) to c ommission staff. 

83. (d)
the commission agrees with the cour t that 
u s i n g   a   c o m b i n a t i o n   o f   f i n a n c i n g   m o d a l i -
ties enables a strengthened response to the 
needs. this can be assured within a single -
s e c to r   p o l i c y   s u p p o r t   p ro gra m m e   a n d   t h e 
c o m m i s s i o n   h a s   b u i l t   u p   g o o d   p r a c t i c e s 
and  experiences  in  terms  of  using  a  mix  of 
aid deliver y in the education sec tor. 

83. (e)
t h e   c o m m i s s i o n   a g r e e s   w i t h   t h e   c o u r t ’s 
re co m m e n d at i o n   a n d   wo u l d   a gre e   to   p ro -
m o t e   s e c t o r - s p e c i f i c   p u b l i c   f i n a n c e   m a n -
a g e m e n t   (p f m)   w o r k   w h e r e v e r   p o s s i b l e 
within the contex t of sec tor polic y suppor t 
programmes (spsp).  this t ype of ac tivit y is 
already tak ing place in some countries.

83. (f )
t h e   c o m m i s s i o n   a g r e e s   w i t h   t h e   c o u r t ’s 
re co m m e n d at i o n   re g a rd i n g   t h e   a l i gn m e nt 
o f   d o n o r   m o n i t o r i n g   a n d   r e p o r t i n g   s y s -
t e m s .   t h i s   i s   a l r e a d y   a   p r a c t i c e   s t r o n g l y 
promoted,  par ticular ly  when  wor k ing  with 
o t h e r   d o n o r s   a t   c o u n t r y   l e ve l   i n   a   s e c t o r - 
w i d e   a p p ro a c h   a n d   i s   fo r m a l i s e d   t h ro u g h 
t h e   s i g n a t u r e   o f   m e m o r a n d u m   o f   u n d e r -
standing. 

83. (c) (i)
A s   t h e   co m m i s s i o n’s   g e n e r a l   b u d g e t   s u p -
p o r t   (G Bs)   g u i d e l i n e s   p o i n t   o u t :   e ve n   i f   i t 
suppor ts a countr y ’s overall priorities, GBs 
s h o u l d   n o t   b e   b u i l t   a s   a   ‘ m u l t i - s e c t o r a l ’ 
o p e r a t i o n ,   s i n c e   t h i s   w o u l d   w e a k e n   t h e 
focus  of  suppor ting  national  development 
p o l i c y   a n d   s t rate g y   i n   co h e re n ce   w i t h   t h e 
fundamental goals of the c ommission.

83. (c) (ii)
to   m a k e   t h e   b e s t   u s e   o f   t h e   p o t e n t i a l   o f 
general budget suppor t (GBs), EU financing 
should be accompanied by polic y dialogue 
i n   t h e   s e c t o r s   w h i c h   a r e   i n c l u d e d   i n   t h e 
variable  tranche. Within  the  contex t  of  the 
EU Division of  labour the  commission is in 
t h e   p r o c e s s   o f   f o r m a l l y   d e l e g a t i n g   t o   E U 
member states in some countries the func-
t i o n s   o f   s e c to r   p o l i c y   d i a l o g u e   a n d   s e c to r 
per formance monitoring.

83. (c) (iii)
in general budget suppor t (GBs), education 
i n d i c a t o r s   a n d   o t h e r   s e c t o r - s p e c i f i c   i n d i -
c a to r s   a re   a l w ays   l i m i te d   i n   n u m b e r.   th e y 
are  used  as  a  prox y  to  capture  progress  in 
the entire pover ty reduc tion programme in 
agreement with the par tner countr y. 

th e   co m m i s s i o n   i s   a l re a d y   p rov i d i n g   s u b -
stantial guidance, advice and suppor t, both 
remotely  and  in  countr y  to  EU  delegations 
regarding this par ticular aspec t of aid man-
a g e m e n t   —   i n c l u d i n g   t h e   p r e p a r a t i o n   o f 
training courses, annual seminars and guid -
ance documents.

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

special r eport no 12/2010 – EU development assistance for basic education in sub-saharan Africa and south Asia

European court of Auditors

special report no 12/2010

eu development assistance for basic education in sub-saharan Africa and south Asia

luxembourg: publications office of the European Union

2011 — 88 pp. — 21 × 29,7 cm

isBn 978-92-9237-006-0

doi:10.2865/82068

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improvinG thE AvAilABilitY AnD QUAlitY of EDUcAtion is A mAJor 

fActor  in thE  GloBAl  fiGht  AGAinst  povErtY,  rEflEctED  in thE 

UnitED nAtions millEnniUm DEvElopmEnt GoAls. this spEciAl rEport 

AssEssEs WhEthEr  EU  DEvElopmEnt  AssistAncE  in  sUB-sAhArAn 

AfricA AnD soUth AsiA hAs hElpED to improvE thE AccEssiBilitY AnD 

QUAlitY of BAsic EDUcAtion AnD EXAminEs hoW thE commission 

proGrAmmED AnD monitorED its spEnDinG. thE rEport conclUDEs 

thAt EU AssistAncE AchiEvED somE of thE EXpEctED improvEmEnts 

in  BAsic  EDUcAtion  in  thosE  rEGions  BUt  lEss  thAn  intEnDED, 

AnD thAt thE  commission’s  mAnAGEmEnt  DiD  not  consistEntlY 

EnsUrE AppropriAtE proGrAmminG AnD implEmEntAtion of AiD. thE 

rEport contAins rEcommEnDAtions Which ArE AimED At hElpinG 

thE commission to improvE thE mAnAGEmEnt of EU DEvElopmEnt 

AssistAncE for EDUcAtion.

EUropEAn coUrt of AUDitors