SINDH CAPACITY DEVELOPMENT PROJECT

SINDH NON-FORMAL

EDUCATION IMPLEMENTATION

FRAMEWORK (2019-2023)

SCHOOL EDUCATION & LITERACY DEPARTMENT

GOVERNMENT OF SINDH

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Acknowledgement

Development of Sindh Non-Formal Education (NFE) Policy - Implementation Framework is the outcome of a

yearlong process. The framework will help to implement the SDG 4 goals in the non-formal educational context

of Sindh.

The first acknowledgement is to the NFE Task Force and all its sub- committees which contributed in the

development of NFE Policy - Implementation framework.

The School Education and Literacy Department (SELD), Directorate of Literacy and Non-Formal Education and

the technical team of USAID-Sindh Capacity Development Project are grateful to all SELD officials and its related

departments - particularly Sindh Teacher Education Development Authority, Sindh Education Foundation,

Directorate of Curriculum, Assessment and Research, Provincial Institute of Teacher Education, Sindh Textbook

Board, Reform Support Unit and Curriculum Wing that contributed in the development and completion of this

document during various consultative meetings.

The Directorate also acknowledges the support of our development partners; the USAID Sindh Reading Program

under the Sindh Basic Education Program, Japan International Cooperation Agency, United Nations Children

Fund and United Nations Educational, Scientific & Cultural Organization for their hard work and dedication as a

consortium of committed development partners.

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Table of Contents

Acknowledgement ......................................................................................................................................................... 1

Introduction ................................................................................................................................................................... 3

Organizational Roles and Responsibilities .................................................................................................................... 5

Coordination................................................................................................................................................. 5

Oversight ...................................................................................................................................................... 5

Guiding Essentials for Implementation ......................................................................................................................... 7

Mapping of Existing NFE Services .............................................................................................................. 7

NFE-PPP Approach ..................................................................................................................................... 7

Distribution of Roles and Responsibilities of Non Formal Directorate, Private Sector and SE&LDs Using

PPP’s ............................................................................................................................................................ 8

Projection and Costing ................................................................................................................................................. 10

Year wise Projection of NFBE OOSC targets ............................................................................................ 10

Simulation and Costing of NFE Policy Implementation ............................................................................ 10

i. Scale Component ....................................................................................................................................... 11

ii. Non-Scale Component ............................................................................................................................... 11

Scale Cost ................................................................................................................................................... 11

Non-Scale Costs ......................................................................................................................................... 11

Total Cost Outlay ....................................................................................................................................... 12

Challenges ................................................................................................................................................................... 13

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Introduction

The implementation plan and framework for the Sindh Non-Formal Education (NFE) Policy 2017 has been prepared

as a guide to implementation, monitoring and financing of the Policy. The Policy provides a long-term vision for NFE

in Sindh province. Achieving the end targets through policy options given in the Policy required translation and

breaking down of the Policy into plans that provide a time frame for implementation and achievement of specific

targets. This document provides first such time-bound plan that spans over 5 years, with strategies and activities for

effective implementation.

The document was developed through extensive consultations in a sub-committee of NFE Task Force, nominated for

policy development, comprising representatives of Directorate of Literacy and Non-Formal Education, PPP Node,

Sindh Education Foundation (SEF), USAID-Sindh Capacity Development Project (SCDP), United Nations Children

Fund (UNICEF), Sindh Reading Program (SRP) and Japan International Cooperation Agency (JICA). Meetings were

also held with Reforms Support Unit (RSU) of the School Education & Literacy Department (SE&LD) and Academy

of Education Planning and Management (AEPAM) for gathering data and relevant education statistics.

The Implementation Plan spans the next five years from 2019 to 2023, however, some strategies and activities

identified in the plan continue beyond this period. The plan operationalizes options given in Policy and converts these

into a set of strategies and activities over the next five years to guide the implementation process. Similar to the Policy

development approach, the Implementation framework has been constructed to include all stakeholders: relevant

government departments, development partners, business community and civil society organizations. Most

significantly it includes political leadership in identification, prioritisation, developing implementation strategy and

review of the policy.

For the process of implementation, four enabling conditions will be critical. Firstly, the institutional will and capacity

of the main coordination and implementation body, i.e. the Directorate of Literacy and NFE. This will need to be

backed comprehensively by the School Education and Literacy Department (SE&LD). Secondly, the inclusion of civil

society and business community must be mobilized more proactively. In the past civil society organizations were often

not present in the Task Force or the sub-committee meetings. Thirdly, the cooperation manifested among development

partners since the inception of the Task Force on NFE will not only have to continue but become stronger. Meetings

will have to be more regular and with increased planning. Finally, augmentation of active political support is essential.

Strong political support will not only provide requisite funds but also help in getting more difficult decisions being

taken and implemented.

The Task Force on NFE has the mandate to oversee policy implementation and advise on review, where need. The

highest oversight body will be the Education Committee of Sindh Assembly. The set of sub-committees under the

Task Force and their mandates are also being recommended to change under the Framework.

This document explains following components of the implementation plan:

a) Organizational Roles and Responsibilities

b) Guiding Essentials of Implementation

c) Costing

d) Challenges

This has to be seen as a living document. As the NFE policy provides an option for review of the policy, the same

flexibility will be maintained for this plan and framework as well. The fundamentals of each of the above areas have

been explained below in detail.

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After introduction, first section of the document provides the implementation arrangements, roles and responsibilities.

Separate section for this strand explains the implementation arrangements in detail including the coordination and

oversight roles of different organizations.

In the second section, Guiding Essentials are explained in detail which include a) Mapping of Existing NFE Service,

b) PPP-NFE Approach and c) Professional Development of NFE facilitators/ teachers.

Third section of the document explains costing of model. Detailed model is given in the supporting document of policy

simulation, projection and costing.

The last section of the document presents the challenges in implementing the NFE policy.

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Organizational Roles and Responsibilities

The Policy will be implemented directly by the Directorate of Literacy and NFBE. But there are important policy

options for quality assurance and control where relevant organizations of the SE&LD will also be included in

operationalization of policy options. These options will be implemented through coordination between the Directorate

of Literacy and NFE, PPP Node, Sindh Education Foundation (SEF) and the relevant quality assurance organization.

These quality assurance and control organizations include the Directorate of Curriculum, Assessment and Research

(DCAR), Sindh Textbook Board (STBB), Sindh Teacher Education Development Authority (STEDA) and Sindh

Examination Commission (SEC).

All these organizations will be included in implementation of various policy options, which are interlinked. In many

recommendations, these organisations will have to collaborate for maximizing the efforts and enhancing the impact

of policy implementation. This creates the need for coordination at the Directorate of Literacy and NFE and within

each of these organizations. Finally, the Directorate of Primary Education and Directorate of Secondary Education at

regional levels are important stakeholders. Sindh Technical Education and Vocational Training Authority (STVETA)

also has a critical role in successful implementation.

Coordination

The Directorate of Literacy and NFE will be the central implementing and coordinating body that will work within

the ambit of the Task Force on NFE and its Sub-Committee on Policy. The Directorate will also manage the Public

Private Partnership model of implementation described in the next chapter (along with the role of the Directorate)

Each of the organizations mentioned earlier will nominate focal persons to attend the meetings on Policy

implementation, as and, when necessary. The Central Coordinating body will have the following role:

i. Function as Secretariat for meetings of the oversight bodies

ii. Coordinate and document prioritization and review meetings on the Policy

iii. Coordinate development of medium term and annual plans

iv. Document feedback on indicators for review

v. On approval from competent forums, make changes in plans and the Policy document

Oversight

Oversight and Review will be based on a hierarchy of forums. The regularity of their meetings and level of decisions

will be decided accordingly. The following organizations collectively constitute the Oversight function.

i. Sub-Committee on Policy of the Task Force on NFE

ii. Task Force on NFE

iii. Education Committee of Sindh Assembly

The Sub-Committee on Policy will meet at least once in a quarter. The forum will be used as the primary body for

discussions on prioritization and development of draft plans including timelines, indicators and responsibilities. Allied

organisations will be invited to its meetings as per requirement. Prioritized medium term plans approved by the Sub-

Committee will be sent to higher forums for approval. Representatives of the Planning and Development and Finance

Departments will be invited to meetings where plans are presented and approved. Directors of Primary and Secondary

Education will also participate in the meetings to agree on joint goals with NFE sector.

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The Task Force will approve the medium-term plan after clearance from the Sub-Committee. Any observations of the

Task Force will be incorporated and revised Plan will have to be approved by the Secretary of Education as head of

the Task Force.

The Sub-Committee will subsequently oversee development of the annual plans to be included in the budget and

monitor progress of implementation on the bases of quarterly reports generated by the Coordination Committee. The

Sub-Committee will be authorised to review the plan during the course of implementation provided there are no cost

accelerations. In case a cost enhancement becomes necessary the process will be moved through the Minister for

Education for approval and subsequent request to Finance and P&DD.

The Task Force will be presented progress reports at least twice in a financial year and at least once a year progress

will be presented to the Education Committee of Sindh Assembly. As stated above, the Policy will be reviewed after

three years on the basis of an external evaluation. Revisions in the Policy will be moved through the same set of

Oversight bodies: the Sub-Committee on Policy, the Task Force on NFE and the Education Committee of the Sindh

Assembly. If there are no substantial changes in the scope, the Minister for Education will sign off on the revisions.

If the revisions are substantive, the approval will be given by the Chief Minister of Sindh. The recommendation for

the competent forum based on the degree of change will be given by the Task Force on NFE.

Modifications in the Task Force

To allow for better implementation and building a wider coalition the Task Force on NFE may need to be modified in

terms of composition and terms of reference. Its role as oversight for Policy implementation needs to be added as and

when required.

The same applies to sub-committees. Currently the Task Force has the following Sub-Committees:

i. Curriculum and Learning Material

ii. Teacher Management

iii. Community Mobilisation

iv. Capacity Development

v. Policy

Some of the work assigned to these Committees has already been completed. These may now be re-constituted on the

basis of functional areas of the Policy, which include:

1. Regulation and Standards that includes curriculum and learning

2. Teacher quality, certification and management (modified from the earlier)

3. Capacity Development committee enhances its scope to add capacity development of allied organizations

also.

4. Policy Implementation and Review will be the modified version of the sub-Committee on Policy.

5. Participation and access committee will look at the expansion of centres and their effectiveness and include

the work of the community mobilisation group.

6. Financing and tracking of resources –allocation and utilization

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Guiding Essentials for Implementation

The implementation will be guided by three essential principles

i. Mapping of existing NFE Services

ii. Public Private Partnerships as a primary approach for NFE

iii. Professional Development of NFE Facilitators/ Teachers

These will help improve targeting, efficiency and effectiveness of delivery.

Mapping of Existing NFE Services

Mapping of existing NFE services is essential to ensure improved monitoring and accountability of the current efforts.

It will also assist the Education and Literacy Department, Government of Sindh, in identifying coverage gaps to

prioritise additional interventions. Mapping of NFE coverage and calculating Out of School Children (OOSC) at

district level across the province will be an important next step. Framework for Mapping the OOSC is suggested to be

developed under the leadership of the Directorate of Literacy and NFBE for strategizing the exercise. Using the PPP

approach, it is suggested that a Mapping Framework is developed with the help of development partners and sub-

committees. The Mapping Framework shall broadly include the districts and type of Non-Formal settings at provincial

level.

NFEMIS has been already set up by the Directorate of Literacy and NFBE. The terms of reference and details need to

be reviewed. This will be undertaken by the Directorate in view of the revised standards of NFE delivery. The NFE-

MIS will be helpful for further strategizing the process in using the OOSC data at district level.

NFE-PPP Approach

The Sindh Public Private Partnerships Act 2010 provides a legal framework for implementing PPPs in Sindh. Sindh

Public Procurement Regulatory Authority and its Sindh Public Procurement Rules 2010 guide the PPP transactions.

These two laws will provide the necessary guidance to outsource the service delivery in non-formal basic education

sub-sector.

In order to attract the philanthropists, community based organizations (CBO’s) and non-profit organizations, the

School Education and Literacy Department after consulting with the relevant stakeholders will notify the NFE-PPP

framework. The framework will inform the private sector, as mentioned above, about the roles and responsibilities of

government and of the counterpart implementing operators. The framework will inform the implementation modalities

on a) Legal b) Institutional c) Financial and d) Contract Management.

Sindh has an elaborate legal framework on public private partnerships. It allows for provision of services under PPP

arrangements. The Education and Literacy Department has already handed over a selected number of formal schools

to private partners under PPP contracts for management through the Education Management Organization (EMO)

model. The same statute allows the use of PPP framework for non-formal education. A specific framework shall be

developed under the law. This will ensure that the weaknesses of the current delivery mechanisms are addressed and

the service providers who can deliver effectively are attracted to the NFE sector. Moreover, a stronger monitoring and

follow up mechanism shall be introduced. A few issues to consider are:

i. Child to benefit in a subsidised model where no expenses are incurred by the family. The same should be

considered for adult beneficiaries.

ii. Criterion for selection should not be limited to per child cost. A value for money framework should be

developed to ensure the quality of service provision.

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Further details and timelines for implementation framework are embodied in the implementation matrix supporting

document.

Distribution of Roles and Responsibilities of Non Formal Directorate, Private Sector

and SE&LDs Using PPP’s

Role of NFE- Directorate, PPP-Node STBB, PITE, DCAR and DG M&E

The role of NFE Directorate will be included but not limited to coordination and communication with Sindh Textbook

Boards (STBB) for distribution of books. In order to deliver PPP services, PPP-Node will help NFE-directorate in

designing, and firming-up PPP projects. PPP Node will also coordinate closely with Directorate NFE to structure PPP

transactions. Further, for facilitator’s training and Continuous Professional Development, Directorate will channelize

the communication with Provincial Institute of Teacher’s Training (PITE), DCAR and developing/private partners’

capacities (in case needed). In addition, NFE directorate will closely work with DG Monitoring in order to initiate

strong monitoring mechanisms and check & balance at ground level to ensure quality delivery at NFE centres (or any

other model used by Directorate using PPP in Non-formal settings). Also, Directorate’s role will be to overview

financial aspects and costs involved in process of delivery.

Role of Private Partners

For operational and technical support of NFE directorate, the private organizations will be contracted to implement

the NFE services in the selected areas through concessional agreements or MoUs. The role of partners shall be to plan,

organize and operationalize the given NFE centres while ensuring the quality of learning and maintaining the retention

of the learners, using the PPP model. The role of the donor agencies will be to provide the technical assistance to the

Directorate.

Professional Development of NFE Facilitators/ Teachers

In order to attain the quality standards of education in non-formal sector, one of the key area that needs the prime

attention is ensuring the professional development of the NFE Facilitators/Teachers. The NFE Policy has been

developed which provides broader guidelines on teachers’/ facilitators’ trainings. The organizations that are working

for the teachers’/ facilitators’ training include the PITE and STEDA as critical stakeholders, supporting the Directorate

of Literacy and NFBE. Similar to formal education, the STEDA is responsible for developing the standards and PITE

for implementing the capacity building of the NFE facilitators/ teachers.

Following two options are suggested to be considered for the professional development of NFE teachers:

i. Teachers are trained directly by PITE

ii. Teachers trained by private implementing partners shall abide the framework prepared by STEDA and the

trainings shall be monitored by PITE with the assistance of Directorate of Literacy and NFBE.

Teacher’s management framework is comprised of

a) Minimum standards for NFE Facilitator (including those for basic education and for adult literacy)

b) NFE facilitator’s engagement and corresponding processes

c) NFE facilitator’s capacity building mechanism that narrates pre-service and/or induction training and

continuing professional development (CPD) in service training for NFE facilitator. CPD of NFE includes on-

job training and refresher course on content mastery, pedagogical skills, classroom management and

pedagogical supervision on regular basis (reference teacher’s management framework document)

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In order to apply the NFE implementation framework, it is suggested that the framework standards are used for

implementation from teacher’s management framework which include:

• Standard No 1- Teaching and Learning Competency

• Standard No 2- Human Growth and Development

• Standard No 3- Values

• Standard No 4- Assessment

• Standard No 5- Capacity Development

• Standard No 6- Communication Skills

• Standard No-7 Community, Parents’ and Learners’ Participation

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Projection and Costing

The sector has largely remained under-funded. The total size of the NFE funding is 0.06% of the total education

budget. The Implementation Framework envisages gradual increase of NFE’s share in addressing total out of school

children from 2% in 2019 to 11% in 2023.

This significant decrease of out of school children by enrolling them in non-formal centres will require provision of

extra resources. It is estimated that NFE budget should increase from current from0.06% to 4.86% in 2023 of the total

education budget. Additionally, the current practice of scheme based NFE service delivery should be curtailed and

NFE service delivery budget should become part of the non-salary budget of SELD.

Year wise Projection of NFBE OOSC targets

Projections for new learners to be enrolled through PPP in NFE are shown in the following table. It is expected that

from the year 2019/20 to 2023/24, approximately 617,661 new learners will be benefitting through PPPs in NFE.

Projections for New Learners Through PPP in NFE

2019/20 2020/21 2021/22 2022/23 2023/24 Total

Boys 33,354 48,178 63,001 77,208 83,384 305,125

Girls 28,412 44,472 60,531 77,208 101,914 312,536

Total 61,766 92,649 123,532 154,415 185,298 617,661

The chart below shows year wise bifurcation of OOSC children from year 2019-2023, it shows OOSC will increase

from 2% to 11% in next 5 years. To cope with this challenge, role of Non- Formal Education is important.

Year Wise and Gender Disaggregated NFBE OOSC Targets

2019 2020 2021 2022 2023

Boys 2% 4% 6% 8% 9%

Girls 3% 5% 8% 10% 13%

Total 2% 4% 7% 9% 11%

To cater the above challenge implementation framework provides activities discussed in detail in next section

Simulation and Costing of NFE Policy Implementation

The document provides sequence of activities for the next 5 years. Based on the strategies and activities identified in

the implementation plan and the matrix (see supporting documents), NFE Policy simulation model was designed to

achieve following objectives;

i. NFBE enrolment targets/projections for the first 5 year NFE Policy implementation plan.

ii. Identification of resource requirements and associated costs to achieve NFBE enrolment targets.

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iii. Costing of quality, governance and management related interventions as identified in NFE Policy

Implementation plan and matrix.

The model is bifurcated into two components;

i. Scale Component dealing with the first two objectives related to expansion of system based on projected

NFE enrolments.

ii. Non-Scale Component catering to the third objective for calculating costs of quality, governance and

management related interventions, as identified in NFE Policy Implementation Plan and Matrix.

Scale Cost

Scale Component Cost Estimates

Cost in Million Pak Rs.

2019 2020 2021 2022 2023 Total

Tutor Stipends Recurrent 635.31 1,397.68 2,306.17 3,382.38 4,650.77 12,372.31

Tutor Trainings Development 21.18 23.29 25.62 28.19 31.01 129.29

Materials & Fixtures Development 205.29 213.31 218.85 223.30 210.07 1,070.81

Assessments & Certifications Development 74.41 75.60 75.26 74.07 63.70 363.02

Monitoring Costs Recurrent 111.00 122.10 134.31 147.74 164.32 686.67

Operational Cost Recurrent 234.61 509.14 827.38 1,194.42 1,613.82 4,379.37

Total (million Pak Rs.) 1,281.79 2,341.12 3,587.59 5,050.10 6,733.68 18,994.27

Development Cost 300.87 312.20 319.73 325.55 304.77 1,563.12

Recurrent Cost 980.92 2,028.92 3,267.86 4,724.54 6,428.91 17,431.15

Cost in Billion Pak Rs.

Total (Billion Pak Rs.) 1.28 2.34 3.59 5.05 6.73 18.99

Development Cost 0.30 0.31 0.32 0.33 0.30 1.56

Recurrent Cost 0.98 2.03 3.27 4.72 6.43 17.43

Non-Scale Costs

Non Scale Cost Estimates

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Cost in Million Pak Rs.

2019 2020 2021 2022 2023 Total

Overarching Areas

Service Delivery and Regulation 2.14 14.14 14.20 1.33 0.00 31.81

Innovations 0.00 0.00 4.77 1.77 0.00 6.54

Community Mobilization 0.00 5.15 0.00 0.00 0.00 5.15

Capacity of the Directorate of NFBE and Adult Literacy 0.00 2.19 0.00 0.00 0.00 2.19

Finances 0.00 1.02 0.00 0.00 0.00 1.02

NF-Education Management Information System 3.41 1.91 0.00 0.00 0.00 5.31

Research 0.00 3.97 0.00 0.00 0.00 3.97

Overarching Areas Sub Total 5.55 28.38 18.97 3.10 0.00 55.99

Non-Formal Basic Education

Access and Participation 15.51 21.72 0.78 0.00 0.00 38.01

Quality 0.00 32.06 3.83 0.00 0.00 35.90

Early Childhood Care and Education 0.00 7.73 2.70 0.00 0.00 10.43

Non-Formal Basic Education Sub Total 15.51 61.51 7.31 0.00 0.00 84.34

Adult Literacy and Education

Participation 0.00 4.20 4.20 0.00 0.00 8.40

Quality 8.01 18.14 5.39 0.00 0.00 31.54

Linkages with Other Social Development Programmes 0.00 2.63 0.00 0.00 0.00 2.63

Continued Adult Education and Training 17.43 20.13 2.70 0.00 0.00 40.26

Adult Literacy and Education Sub Total 25.44 45.10 12.29 0.00 0.00 82.82

Total (million Pak Rs.) 46.50 134.99 38.57 3.10 0.00 223.15

Total (Billion Pak Rs.) 0.05 0.13 0.04 0.00 0.00 0.22

Total Cost Outlay

Table below outlines the total budget outlay over the next 5 years. It also provides the break up for each year. The

recurrent cost includes only scale component costs in terms of tutor stipends, monitoring and operational costs of

centres. The development head includes scale component related tutor trainings, materials, fixtures and

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assessment/certification costs and non-scale related costs. The scale and non-scale costs are clubbed to form the

‘development costs’ for budgetary purposes.

2019 2020 2021 2022 2023 Total

Recurrent Cost

Scale 980.92 2,028.92 3,267.86 4,724.54 6,428.91 17,431.15

Non Scale 0.00 0.00 0.00 0.00 0.00 0.00

Sub Total Recurrent 980.92 2,028.92 3,267.86 4,724.54 6,428.91 17,431.15

Development Cost

Scale 300.87 312.20 319.73 325.55 304.77 1,563.12

Non Scale 46.50 134.99 38.57 3.10 0.00 223.15

Sub Total Development 347.37 447.19 358.30 328.65 304.77 1,786.28

Grand Total (in Million Pak Rs.) 1,328.28 2,476.11 3,626.16 5,053.19 6,733.68 19,217.43

Grand Total (in Billion Pak Rs.) 1.33 2.48 3.63 5.05 6.73 19.22

Challenges

• The current human and other resources at provincial and district level need capacity building and

strengthening (tehsil to provincial level). Unless this area is addressed Policy will fail to achieve its objectives

even in the short term.

• Sufficient allocations and timely release of funds are key to the implementation of the NFBE policy

• Continuous professional development of the Directorate’s staff and NFE facilitators will have additional

financial implications which need to be ensured