Strengthening Local Governance and Participation

for the

Realization of Children’s Right to Education

January 2010 to June 2013

Funded by the European Union

Final Evaluation

August 2013

ACKNOWLEDGEMENTS

We would like to express our appreciation to the Ministry of Education and Sports, particularly the two Deputy

Director Generals of the Department of Pre-primary and Primary Education, Ajaan Keun Saysanavongxay and

Ajaan Sipaphone Manivanh, who assigned staff to support the evaluation as well as making themselves available to

meet with us. Special thanks are due to staff of Plan International in the Lao PDR at the national, provincial, and

district levels for their support in organizing schedules, managing logistics, and arranging meetings during the

fieldwork portion of this evaluation. In particular, we would like to recognize Thongmany Keosavang, Education

Assistant from the Plan Country Office for her tireless assistance with interpretation, her patience, and her helpful

suggestions. We would also like to acknowledge the members of the evaluation team from the Ministry of Education

and Sports in Vientiane, from the Provincial Education and Sports Service in Houay Xai and the District Education

and Sports Bureau in Pha Oudom, Pak Tha, and Meung. Their contributions were invaluable.

Close to 300 informants – children, parents, teachers, principals, Village Education Development Committee

members, government officials, and the staff of international NGOs – provided input into the evaluation. Without

their contributions, this report would not have been possible.

Christine Munro

W. John Howe

Consultants

Asia-Oceania Development Network

www.asiaoceania.net September 2013

NOTE:

In line with Plan International‟s Child Protection Policy, the photographs included in this report were taken by the

consultants (unless otherwise credited) with the permission of the subjects on the understanding that they would be

used exclusively in this report and not for other purposes.

ii

LIST OF ACRONYMS

AODN Asia Oceania Development Network

ASLO Assessment of Student Learning Outcomes

BEP Basic Education Programme DESB District Education and Sports Bureau ECCD Early Childhood Care and Development EFA Education for All EMIS Education Management Information System ESDP Education Sector Development Plan ESWG Education Sector Working Group EU European Union FTI Fast Track Initiative INGO International Non Government Organisation LDC Least Developed Country MDG Millennium Development Goal MoES Ministry of Education and Sport MoFA Ministry of Foreign Affairs MTR Mid-term Review NER Net Enrolment Rate NGO Non Government Organisation

OECD/DAC Organization for Economic Cooperation and Development/Development

Assistance Committee PA Pedagogical Advisor PESS Provincial Education and Sports Service RIES Research Institute for Educational Science

SBG School Block Grant

SoQ School of Quality TOR Terms of Reference VEDC Village Education Development Committee WASH Water, Sanitation and Hygiene

iii

TABLE OF CONTENTS

ACKNOWLEDGEMENTS i

LIST OF ACRONYMS ii

EXECUTIVE SUMMARY 1

1. INTRODUCTION 5 1.1 Project Background 5

1.2 Purpose of the Evaluation 5

1.3 Methodology 5

1.4 Evaluation Team 6

1.5 Evaluation Challenges and Opportunities 6

2. FINDINGS 7 2.1 Relevance 7 2.1.1 Relevance to International Strategies and Goals 7

2.1.2 Relevance to Local Needs 7

2.2 Effectiveness 7 2.2.1 Objective One 8

2.2.2 Objective Two 9

2.2.3 Objective Three 11

2.2.4 Objective Four 14

2.2.5 Objective Five 15

2.2.6 Beneficiaries 16

2.3 Efficiency 16 2.3.1 EU Financial Report 17

2.3.2 Plan’s Financial System 17

2.3.3 Planning and Budgeting 18

2.4 Sustainability 18

2.5 Impact 19

3. MANAGEMENT AND PARTNERSHIP 19 3.1 Management 19 3.1.1 Education Technical Support 19

3.1.2 Current Staffing Levels 19

3.2 Synergies among Plan Sectors 20 3.3 Partnership 20

4. CROSS-CUTTING ISSUES 21

4.1 Gender 21

4.2 Disability 21

4.3 Ethnicity/Language 22

5. KEY CHALLENGES 22

6. LESSONS LEARNED 23

iv

7. RECOMMENDATIONS 24 7.1 Governance/Management 24

7.2 Education Quality 24

7.3 Child Rights/Child Participation 25

7.4 Health and Hygiene 25

7.5 Research 25

7.6 Other 26

8. CONCLUSION 26

LIST OF TABLES TABLE 1: Summary of Evaluation Interviews and Observations 6

TABLE 2: Enrolment Data 2010 to 2013 10

TABLE 3: Net Enrolment Rates 2010 to 2013 (Grades 1 to 5) 10

TABLE 4: Repetition, Dropout, and Survival Rates 11 TABLE 5: Quality of Teaching (From Activity with Children) 12

APPENDIX A: CASE STUDY: Positive Discipline in Schools 27

APPENDIX B: CASE STUDY: School Improvement Grants 30

APPENDIX C: TOOLS 33

APPENDIX D TABLE OF INFORMANTS 34

APPENDIX E: SCHEDULE 36

APPENDIX F LOGICAL FRAMEWORK ANALYSIS 37

APPENDIX G FINANCIAL REPORT 38

APPENDIX H TERMS OF REFERENCE 39

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EXECUTIVE SUMMARY

1. INTRODUCTION Strengthening Local Governance and Participation for the Realization of Children’s Right to Education1

funded by the European Union, was implemented by Plan International for 42 months beginning in

January 2010 in Pha Oudom, Pak Tha, and Meung Districts of Bokeo Province in the Lao PDR. This

external evaluation was undertaken from July to September 2013 with fieldwork carried out over a

three-week period in August. The purpose of the evaluation was to assess the implementation of

the project technically as well as to identify strengths and weaknesses in current implementation

strategies, with an emphasis on informing future education programme design. The evaluation team,

led by two independent consultants was comprised of education officials from national, provincial,

and local levels.

2. FINDINGS Relevance The final evaluation assessed the relevance of the Action at several levels - globally, in terms of Plan

International's global Education Strategy 2010 - 2013, as well as Education for All (EFA) targets and

Millennium Development Goals (MDG); nationally, with regard to the Government of the Lao PDR's

Education Sector Development Plan (ESDP); and locally, in relation to the issues and problems that

the Action tried to address within the three target districts. The evaluation found a high degree of

relevance at all of these levels.

Effectiveness The overall objective of the Action was to support the development of primary education services

to reach and respond to the specific needs of marginalized groups and remote communities in

realizing their rights to education in Lao PDR. Plan, with its MoES partners, has been able to meet

this objective. In terms of specific objectives, Plan has strengthened the management and

governance of primary education in the target districts through training and support to local

authorities and village committees. Access, retention, and completion of five years of primary

education have improved during the Action and it is clear that Plan‟s efforts have contributed to this.

Through comprehensive in-service training, Plan worked to improve the quality of primary education

in the three districts. Although research has indicated that learning outcomes for students are still

not positive, there are signs that teaching methods have improved and a more child-centred, active

learning approach is being used in classrooms. In addition, Plan‟s multi-pronged approach to

strengthening schools in cooperation with the WASH and Child Rights/Child Participation sectors

has shown positive results in achieving healthy, non-violent, and inclusive learning environments. At

the national level, Plan‟s evidence-based advocacy is contributing to policy discussions.

All students in the 143 schools, 6,742 (45%) of whom are girls, school principals and teachers, and

members of the VEDC were direct beneficiaries of the Action, Families and communities as a whole

are indirect beneficiaries as they are the target for awareness-raising campaigns on the importance of

education, child rights and child protection, and health and hygiene.

Efficiency In terms of efficiency, the evaluation focussed on financial management, including the systems and

processes used for the transfer of funds from the centre to the field, as well as rate of expenditures.

This includes a brief analysis of overall expenditures of the Action, as well as Plan's financial

management system, particularly at district level, and encompasses some aspects which may have

implications for financial management in future education programming.

1 Referred to throughout this report as the Action in line with European Union terminology

2

The final evaluation found that Plan's finance system had managed the EU grant efficiently and

effectively. Overall, the breakdown of expenditures would appear to be appropriate for an Action

of this nature, with the bulk of expenditures either involving direct activity costs or support costs.

Sustainability Measuring the longer term positive benefits of this Action is difficult as it was completed only a few

months ago. However, it is possible to consider the likelihood of sustainability by examining the

project design and the current context in which the Action has been implemented.

Certain elements of the design such as training, follow up, and support for principals, teachers, and

members of the Village Education Committee, promote sustainability and can lead to long term gains

for children. Other elements that have contributed to the overall achievement of project objectives

in the short term e.g. provision of school supplies to children and teaching learning materials to

classroom teachers, do not ensure benefits in the long term once funding is no longer available.

However, the provision of school supplies was cited numerous times by parents as one of the

reasons they are able to send their children to school. Sustainability in education projects is also

influenced by the context in which it is implemented. The Lao PDR is still struggling to meet the

MDG and LFA benchmarks and thus warrants support from major international donors in the

education sector. This ongoing support will help to ensure that gains made to date can be

consolidated and thereby lead to sustainable outcomes in the future.

Impact The Action appears to have had a significant impact in terms of increasing access, as evidenced in

increases in the NER in the three target districts from a combined rate in 2010/2011 of 89% to

96.7% in 2012/2013. There is also some evidence to suggest that the Action has contributed to

improvements in teaching and learning as well as in school management. There is little doubt that a

stronger foundation for primary education has been established than existed before the Action.

3. MANAGEMENT AND PARTNERSHIP While a full assessment of the management arrangements and organisational structure within Plan

was not a main focus of the final evaluation, some aspects were reviewed and aspects of the Basic

Education Programme (BEP), which may need attention in future, were identified. These include the

difficulties related to ensuring adequate education technical support for activities in the field, as well

as capacity of current staffing levels in the Country Office to support both ECCD and BEP.

In terms of synergies among different sectors within Plan, the final evaluation found that Plan teams

at the district level meet monthly to share information on progress to date, discuss issues and their

plans for the upcoming month. However, although individual plans are shared, there is no joint

planning among the teams.

Regarding partnerships, there are formal partnerships with the PESS and the DESBs in Pha Oudom,

Pak Tha, and Meung Districts. Plan has been provided with office space at each of the three DESBs,

which has provided opportunities to work closely with DESB staff on the activities involved in the

Action. However, this has not always guaranteed efficient and effective cooperation and timely

implementation of activities, with information not always flowing freely between the two

organizations. At the national level, various MoES staff indicated that the communications need to

be improved.

4. CROSS-CUTTING ISSUES Through the Inclusive Education National Strategy and Plan of Action, MoES promotes the equitable

provision of quality education in order to reduce and eventually eliminate disparities in access to

education of disadvantaged groups, especially girls and women, ethnic groups, and people with

3

disabilities2. The issues of gender, disability, and ethnic groups are cross-cutting in terms of this

Action. In terms of gender, despite progress in improving gender parity, there are still many barriers

to girls‟ education. Lack of facility in the Lao language by ethnic minority children influences not only

teaching and learning but also impacts retention and completion rates. Children with disabilities are

a hidden and marginalized population, particularly in the remote areas in which this Action was

implemented.

5. KEY CHALLENGES Working in remote, isolated areas with lack of access, services and infrastructure presented

challenges. Along with this, the calibre of teachers and principals working in these areas made

effecting change to the quality of primary education. Many of the ethnic minority children in the

districts do not speak Lao on entering Grade One and, coupled with this, their teachers do not

speak the ethnic languages. In addition, working in partnership with local authorities also presented

a challenge.

6. LESSONS LEARNED The lessons learned during the Action do not represent ground-breaking realizations to be applied

universally to education projects but rather can be considered truisms that should inform the design

of future education initiatives. These include lessons regarding the need for long term commitment

to the target districts and a more innovative approach to in-service training, the challenges of a

partnership approach, and the success of positive discipline.

7. RECOMMENDATIONS As this is the final evaluation of the Action, recommendations are aimed at informing the design and

implementation Plan‟s work in the education sector in Bokeo province in the future.

Recommendations are as follows:

Governance/Management A new, more practical approach be taken to principal training and support

Plan and DESB undertake a joint review of the system of monitoring and support, analyzing what

has been most and least successful with a view to refining and streamlining these efforts in the

future

More attention is given to weaker schools, teachers, and principals

Plan continues to support rigorous data collection and analysis and provides technical support at

the district and provincial education authorities

Plan continues its training and support of VEDCs, focusing on the weaker ones and making use

of stronger ones as models to be emulated

Education Quality A review of the various aspects of in-service training be undertaken with a view to streamlining

and improving it

Plan and DESB include an additional element to in-service training by including a more practical

peer support approach within the existing cluster system

Plan and DESB develop a strategy to foster professionalism and a sense of pride among teachers

and principals in their work

Plan and DESB consider supporting teachers who are skilled in a specific area (such as multi-

grade teaching to set up model classrooms

A two-pronged approach to provision of materials is recommended for future initiatives; first,

Plan should scale-down direct support while placing more emphasis on helping schools to

allocate some of the school block grant funds (SBG) to the purchase of materials such as

2 National Strategy and Plan of Action on Inclusive Education 2011-2015, Ministry Of Education And Sports,

2011

4

supplementary reading books; and two, focus the provision of school supplies on a limited

number of smaller, more remote schools

Child Rights/Child Protection Plan should adopt a more holistic approach to child rights education that includes children,

parents, and all members of the school community with a stronger focus on what child rights

means in terms of their everyday lives

Health and Hygiene The Plan WASH team should undertake an anti-littering campaign in the schools that focuses on

a positive approach to the prevention of littering

Research Plan continues to carry out research initiatives relating to primary education in the Lao PDR.

Plan works closely with the Research Institute for the Educational Sciences (RIES) at MoES in

developing research initiatives and support on-the-job capacity building with RIES staff

Other In the preparation process for new education initiatives, Plan and Ministry staff from the national,

provincial and district level work together to define what is necessary to build a good

relationship and outline and commit to the concrete steps that must be taken to ensure that the

relationship works well for the benefit of the children who are the target of the work

Team work, joint planning and a more holistic approach be implemented to maximise synergies

8. CONCLUSION The Strengthening Local Governance and Participation for the Realization of Children’s Right to Education

initiative was a well-designed, comprehensive programme in line with MoES policies and guidelines.

It made a significant contribution to the efforts of the Lao Government to meet the MDGs and the

EFA target in the three target districts in Bokeo Province. Progress was made towards the

achievement of each of the specific objectives. Although advances were made, further support to

improving the quality of primary education is still necessary and Plan's commitment to the three

districts over the next few years will help to ensure that the gains made in this Action can be

consolidated.

0

1. INTRODUCTION

Strengthening Local Governance and Participation for the Realization of Children’s Right to Education3 funded by the

European Union, was implemented by Plan International for 42 months beginning in January 2010 in Pha Oudom, Pak

Tha, and Meung Districts of Bokeo Province in the Lao PDR. This external project evaluation was commissioned by

Plan International in compliance with the terms of the project agreement. It was undertaken from July to September

2013 with fieldwork carried out over a three-week period in August.

1.1 Project Background This Action is an integral part of Plan‟s Basic Education Program 2009 to 2014, which focuses on ensuring that

children at the primary school level in the target areas are able to develop to their full potential through teacher

training, materials provision, and scholarships, especially for disadvantaged girls.

1.2 Purpose of the Evaluation According to the evaluation Terms of Reference (TOR)4, the purpose of the evaluation was to assess the

implementation of the project technically as well as to identify strengths and weaknesses in current implementation

strategies with an emphasis on informing future education programme design.

The main objectives of the final evaluation were as follows:

Assess the project in relation to the OECD DAC5 evaluation criteria of:

Relevance and quality of the project design, effectiveness of project implementation, in relation to the objectives

and expected results, efficiency of implementation, Impact or the potential for impact, and sustainability;

Specifically assess the project‟s impact on gender equality in the education sector in Bokeo, as well as other

aspects of inclusion addressed or not addressed in the project such as ethnicity, poverty and remoteness;

Specifically assess the relationship between Plan and the government education services at central, provincial and

district level, with a particular focus on strengthened capacities, sustainability and accountability;

Identify the project‟s key challenges during implementation, and lessons learnt;

Describe two cases of best practices or approaches which can be used for the benefit of future interventions in

the education sector by Plan and others in Bokeo and other parts of Lao or internationally;

Generate concrete conclusions and recommendations that can feed in to planning and design of the next

program phase.

1.3 Methodology A participatory approach was used throughout the evaluation. A wide range of stakeholders was consulted including

children, parents, teachers, principals, Village Education Development Committee (VEDC) members, relevant

education officials at national, provincial, and district levels, as well as international non-government organizations

(INGOs) involved in the education sector in Laos.

A desk review of project documents, reports, and other publications was undertaken by two external consultants in

Bangkok and Jakarta prior to the field work portion of the evaluation and continued as new documentation was

provided. Alongside the desk review, evaluation tools6 were designed and refined by the consultants, and translated

into Lao with the assistance of Plan staff. Tools included interview questions, observation and secondary data

collection forms, and a participatory activity for children, designed to elicit the extent to which child-centred

teaching techniques and positive discipline methods are being used in the classroom. A preparation workshop was

held in Pha Oudom District to familiarize the team (see 1.4 below) with their roles and with the techniques to be

used in the evaluation.

Fieldwork was carried out over a three-week period in the three target districts in Bokeo Province. Ten school

communities were identified by Plan staff to be included in the process. These included a range of schools (weak and

strong) with diverse ethnicities. Activities and interviews were carried out by the evaluation team (usually working

in pairs, which included an interviewer and a note taker). Data consolidation was facilitated by the consultants after

each school/community visit. Interviews were also conducted in Vientiane with relevant government officials and

representatives of INGOs.

3 Referred to throughout this report as the Action in line with European Union terminology 4 See Appendix H for the complete Terms of Reference 5 Organization for Economic Cooperation and Development/Development Assistance Committee 6 See Appendix C

1

The following table provides a summary of the activities conducted during the evaluation.

Table 1: Summary of Evaluation Interviews, Observations

Interviews

Number

of Interviews

Ministry of Education and Sports (MoES)Staff 5

Provincial Education and Sports Service (PESS) Staff , Bokeo 2

District Education and Sports Bureau (DESB) Staff, Pha Oudom, Pak Tha, and Meung 6

Research Institute for Educational Service (RIES) 1

District Governor, Meung District 1

Principals 97

Teachers 6

Radio Station Personnel 1

Ministry of Foreign Affairs 1

INGO Staff and Others 5

Plan International Staff 14

Group Interviews

Parents 10

Children 10

Village Education Development Committees 10

Observations

Schools 10

Total 91

1.4 Evaluation Team Two independent consultants from the Asia Oceania Development Network (AODN) led the team which was

comprised of two representatives from the Ministry of Education and Sports (MoES), one from the Provincial

Education and Sports Service (PESS), either one or two from District Education and Sports (DESB) depending on the

district, and a representative from the Ministry of Foreign Affairs (MoFA). Members of the Plan staff at the District

level and one from the Vientiane Country Office who served as translator also took part in the evaluation.

Throughout the evaluation process, Plan International provided administrative, logistical, and

translation/interpretation support to the team.

1.5 Evaluation Challenges and Opportunities The evaluation faced a number of challenges throughout the process. However, these challenges were

counterbalanced by a number of opportunities. The challenges were not insurmountable and did not overly

constrain the implementation of the evaluation or affect the findings.

Because of scheduling issues and time constraints, the final evaluation was undertaken during school holidays in

Bokeo Province. The team was therefore unable to observe teachers and students in the classroom and in some

cases was unable to go into the schools or classrooms. However, there is already available a broad range of

information in various reports on aspects of primary education in schools in the three target districts - e.g. The Mid-

term Review, the Multi-grade Teaching Study and the Assessment of Student Learning Outcomes (ASLO) Reports -

all of which have involved significant classroom observation. With the schools closed, the team was provided with

the opportunity of focussing more on the community - the parents and the VEDC members and engaging in in-depth

interviews with the teachers and principals who were available. Unfortunately, in one District (Pha Oudom) there

was limited access to teachers as most of them were involved in a ten-day training programme. Because most

children live in the same village in which their school is located, there was no problem in arranging for volunteers to

participate in the activity designed to elicit their views.

Another constraint was the limited availability of both Plan and relevant government staff at the District level as it

was a particularly busy time for all concerned, although the team was received by the Director of the Education and

Sports Bureau in each District. Several senior MoES officials in Vientiane made time to meet with the evaluation

team's external consultants.

7 One principal was attending training in Luang Nam Tha Province at the time of the evaluation

2

Some evaluation team members lacked experience in the field and were unfamiliar with evaluation methodologies

and interviewing techniques. A preparatory workshop did help prepare team members although time was limited. It

is hoped that this exercise provided some capacity-building for Plan‟s government partners.

2. FINDINGS The findings in this report are presented according to the specifications of the TOR and in relation to the OECD

DAC evaluation criteria: relevance, effectiveness, efficiency, impact, and sustainability8.

2.1 Relevance The extent to which the objectives of the development intervention are consistent with beneficiaries'

requirements, country needs, global priorities and partners' and donor's policies

The final evaluation assessed the relevance of the Action at several levels - globally, in terms of Plan International's

global Education Strategy 2010 - 2013, as well as Education for All (EFA) targets and Millennium Development Goals

(MDG); nationally, with regard to the Government of the Lao PDR's Education Sector Development Plan (ESDP);

and locally, in relation to the issues and problems that the Action tried to address within the three target districts.

2.1.1 Relevance to International Strategies and Goals

The final evaluation found that the Action was fully consistent with Plan International's global Education Strategy 2010

- 2013, which has a focus on improving access, particularly for girls and marginalised children, improving the quality of

teaching and learning as well as governance. The Action has directly contributed to the achievement of both MDG

and EFA goals and targets - specifically, MDG 2 (related to universal primary enrolment and completion) and EFA

Goals 2 (free and compulsory primary education for all), Goal 5 (gender parity in school enrolments) and Goal 6

(improved quality of education). In addition, it has directly supported the Government of the Lao PDR‟s ESDP in

terms of each of the three main areas of focus – expanding equitable access, improving quality and relevance and

strengthening planning and management.

2.1.2 Relevance to Local Needs

The Action focused on three districts classified by the Government of the Lao PDR as 'poor' and 'poorest' and thus

priorities for development. The design of the Action was clearly intended to address shortcomings in terms of

primary education in the three target districts in terms of access, quality of teaching and learning, school

management and education governance. For example, in 2010, the net enrolment rate for primary level across the

three target districts was 89%, well below the target of 98% set by the Lao Government for 2015, with low survival

rates and high repetition and dropout rates, particularly in early grades. The Action has also supported the 'whole

district' approach to education development adopted by the DESB, in line with MoES policy. While this has meant a

'trade off' to some extent in terms of quality, it has ensured that all primary schools in the three target districts have

benefitted in some way.

2.2 Effectiveness The extent to which the development intervention’s objectives were achieved

This refers to the overall objective as well as specific objectives as outlined below.

· The overall objective of the Action is to support the development of primary education services to reach and

respond to the specific needs of marginalized groups and remote communities in realizing their rights to

education in Lao PDR.

In terms of the overall objective, it can be concluded that the Action has achieved its purpose in that over the

course of the past 42 months, Plan International‟s Basic Education Programme has been helping to provide primary

education to poor and disadvantaged children in remote communities in three of the most disadvantaged districts of

the Lao PDR. The extent to which the Action has achieved its specific objectives is examined below.

8 These terms are defined on the OECD website: http://www.oecd.org/dac/evaluation/daccriteriaforevaluatingdevelopmentassistance.htm

3

2.2.1 Objective One

To strengthen management and governance of primary education by local authorities and village

committees in Pha Oudom, Meung and Pak Tha Districts of Bokeo Province

Main Activities:

Train school principals

Support DESBs to provide post-training follow-up support at the school level and strengthen the

Education Management Information System (EMIS) processes

Train village authorities (VEDCs)

Training for School Principals

Training was based on the MoES manual and focused on the seven principles of school management, various aspects

of the Education Management Information System (EMIS), developing Schools of Quality9 (SoQ), including indicators,

and management for school improvement activities. Overall, the number of principals trained exceeded the original

target and all principals received some training with the exception of new appointees. In the final year of the Action,

principal training was delayed for several months in Meung District due to the lack of availability of Ministry trainers.

According to parents, Village Education Development Committee10 (VEDC) members, teachers, DESB staff, and the

principals themselves, the overall quality of school management has improved since the training. One of the strong

points, mentioned by teachers, is the regular staff meetings, which provide support to teachers. One drawback of

the training on the MoES manual noted by the principals is that there has been a greater focus on theory rather than

practice. During the evaluation fieldwork, some principals seemed to be disorganized and were unable to locate

basic information e.g. enrolment data during the interview which speaks to the need for more practical training and

support on organization and record-keeping.

Each principal included in the sample (nine) was also teaching a full classroom schedule, not the six hours per week

indicated by MoES. This is detrimental to the overall quality of the school as there is not sufficient time to fulfil the

role of principal and that of full time teacher. It also limits the extent to which principals can observe and provide

feedback to teachers within their schools. As one principal noted, it is difficult to be a role model to teachers, with

exemplary lesson plans and an ideal classroom, while carrying out all the responsibilities of a principal. There is just

not enough time to do both roles justice.

DESB Support and EMIS Strengthening

The purpose of this activity was to provide more concrete, practical support to teachers and principals after in-

service training and to bolster the gathering and analysis of primary education statistics.

Support from DESB to teachers and principals takes the form of school monitoring visits which include review of

lessons plans, classroom observation, feedback sessions with teachers, discussion with principals on teachers‟

progress, and support on EMIS data gathering and school development plans. In terms of monitoring visits, prior to

the Action, Pedagogical Advisors (PAs) from DESB did not visit schools on a regular basis due to a lack of financial

resources. Many PAs also lacked the skills and experience to ensure that the visits were effective. Some of the

more remote schools (which can only be reached by hiking through the mountains) rarely saw anyone responsible

for education.

However, since the Action began in January 2010, a marked increase in the quantity and quality of school monitoring

visits has been noted. All school and community informants indicated that the number of school visits by Plan and

9 Schools of Quality are part of the Education Sector Development Plan (ESDP) strategy to improve the overall quality of

primary schools. The guidelines include six essential dimensions and outline minimum standards for designation as a SoQ. 10 The VEDC is a body established by the Lao Government to support education at the community level and is comprised of the following members: 1. Village Head – Chairperson; 2. Head of Village Security – Deputy Chair; 3. School principal; 4. Teacher

representative; 5. Lao Women's Union; 6. Lao Youth Union; and 7. Head of Student Parent Committee. By nature of the groups represented, there are rarely more than two (or at most three) women on the Committee).

4

DESB staff range from two times per semester up to once a month. This has been facilitated by Plan‟s financial

support for per diems, motorbikes, fuel costs, etc. Both teachers and principals agreed that the monitoring visits

were valuable, in particular because PAs are now identifying areas of weakness and then providing specifically

targeted support (e.g. math teaching). This is a distinct improvement over the findings in the mid-term review

(MTR). The fact remains, however, that many of the PAs are not sufficiently skilled to offer practical support to

teachers. Teachers also suggested that demonstration lessons to illustrate specific points would be useful.

However, in one school in which a PA taught a demonstration lesson, he was not well-prepared and did not have the

appropriate materials.

In terms of strengthening EMIS, Plan has provided computers and training to DESB staff members who in turn

provide support to principals on gathering relevant data. At the school level, data is still recorded by hand and

submitted to DESB on paper. Although some principals requested computers for their schools, since most primary

schools have no electricity, it seems that this practice will continue for some time. It is clear that data gathering and

analysis has improved in recent years, but this is an area that will need continuous support in order to ensure

rigorous collection, entry, and analysis of data. A study of multi-grade teaching conducted in late 2012 collected

secondary data related to enrolments, repetition and dropout rates, and teacher qualifications. However, when the

data from sample schools in both districts was compared with the data for each school available in EMIS from the

DESB, it was found that there were differences, particularly in enrolment, repetition, and drop out numbers.11 This

suggests that further improvements to the collection and storage of school data under EMIS still need to be made.

Ensuring accurate data is of particular importance in providing valid evidence of progress towards/achievement of the

education Millennium Development Goals (MDGs) and the Education for All (EFA) 2015 targets.

Training for VEDCs

In line with the Education Sector Development Plan (ESDP), Plan has supported training for VEDC members in their

role in improving school governance and management and providing an essential link between the school and the

community.

During the Action, 11 training sessions (covering 61 villages) were conducted for VEDC members. Many VEDCs

received training on basic finance and bookkeeping. All VEDC members in the sample received training on their

roles and responsibilities and also on child rights. Members indicated that the training helped them understand their

relationship with the school and the parents in the community and their function in supporting education. They have

been involved with the development of the school improvement plan and have also helped raise funds if the school

budget was insufficient. Parents spoke of the VEDCs involvement in promoting the understanding of the importance

of education, and visiting homes to ensure that all children were entering and attending primary school classes.

Principals reported that the VEDC serves as a bridge between the school and the community and in some cases

would be utilized to discuss children‟s behavioural problems at school with parents.

It was evident from the interviews with different stakeholders that the competency and commitment level of the

VEDCs varies from community to community. Since VEDC membership is an appointed rather than a voluntary

position, some members were not always available to participate in meetings and take part in activities. In addition,

some new members missed training that was held prior to their appointment. The VEDCs interviewed in Meung

District were particularly weak, most probably due to their lack of facility in the Lao language and their lack of

experience in this type of committee.

2.2.2 Objective Two

To enhance access, retention and completion of five years of primary education

in the three Districts

Main Activities: Children’s Rights Village Campaigns

11 While some of these differences could be attributed to data being collected at different times of the year, the discrepancies in

some schools were significant enough to suggest problems with data quality.

5

Children’s Rights Village Campaigns

Plan carried out awareness raising campaigns in the target villages as planned.

The activities included puppet shows and drama performances focusing on

children‟s right to education and child protection. Many of these events took

place in the evenings so that more community members would be available. In

addition, activities were carried out at various village celebrations such as

Children‟s Day and International Women‟s Day etc. It is not easy to determine

the impact of these campaigns in relation to achieving this objective. However,

activities were well-attended and parents and children expressed their hopes

that they would continue in the future. Nonetheless, due to a number of

factors, which include awareness raising, provision of teaching and learning

resources, and training, there have been significant improvements in terms of

access, with some less significant, yet positive changes in terms of retention and

completion.

In the sample schools/communities included in the evaluation fieldwork,

respondents, including students, indicated that only a few children in their village

were not enrolled in school and that enrolment has increased during the

implementation period of the Action. This anecdotal evidence is borne out by

the by the Provincial Education and Sports Service (PESS) EMIS data as outlined

below. Enrolment figures have increased in each of the three districts since the

beginning of implementation of the Action as illustrated in Table 2. A higher

percentage increase for girls‟ enrolment over the average may also indicate that

more girls are now enrolling than before. The figures are particularly

remarkable in Meung District. One reason suggested for this extraordinary increase is the relocation of people from

remote areas to parts of the District where schools are located within easy access. It is important to note that

many factors can contribute to increase in enrolments and this cannot be attributed solely to Plan supported

activities. However, according to parents, the provision of school materials has been a deciding factor in sending

their children to school.

Table 2: Enrolment Data 2010 to 2013

School Year 2010-2011 2011-2012 2012-2013 Percent

Increase

Enrolment

Pha Oudom 8,069 (3,837 F) 8,322 (3,994 F) 8,401 (4,067 F) 4% (6% F)

Pak Tha 3,086 (1,421 F) 3,232 (1,501 F) 3,246 ( 1,520 F) 5% (7% F)

Meung 1,952 (852 F) 2,124 (980 F) 3,484 (1,155 F) 27% (30% F)

The net enrolment rate (NER) figures for grades one to five shown below in Table 3 indicate that each District has

significantly exceeded the objective indicators outlined in the Action proposal: Pha Oudom 90%; Pak Tha 95%; and

Meung 85% by the end of 2012. The NER for all of Bokeo Province in 2013 is 97.7% while the national rate is

96.8%12. It is interesting to note the figures provided for Pak Tha District seem unrealistically high, which may

indicate errors in data entry.

Table 3: Net Enrolment Rate 2010 to 2013 (Grades 1-5)

School Year 2010-2011 2011-2012 2012-2013

NER

Pha Oudom 93% (90%F) 95% (95%F) 98% (97.6%F)

Pak Tha 94%% (89%F) 96% (95%F) 99.4% (98.5%F)

Meung 80% (79%F) 89% (90%F) 92.8% (92.3%F)

Information in the following table illustrates repetition, dropout, and survival rates. These rates can be used as

proxy indicators to give some indication of quality of education. It is interesting to note that it is Lao Government

12 http://www.devinfolive.info/dashboard/laoeduinfo/index.php#

6

policy that children should no longer „fail‟ a grade but rather make continuous progress towards the completion of

grade five. However, this message does not seem to have reached the target districts. The particularly high

repetition rates in grade one can be attributed to language issues for the children (as well as teachers not being

adequately trained to teach children who do not speak Lao) because many children enter school unable to speak or

understand Lao.

Dropout rates are unreliable at best as there is no system of tracking transfers to other schools when a family

moves, and there are different understandings as to what constitutes 'dropping out'. Similarly, survival rates may also

be unreliable, particularly as schools and DESBs usually do not have accurate data covering five years of primary

education, and the use of formulas to calculate these in light of the lack of accurate data may not produce reliable

results. Table 4: Repetition, Dropout, and Survival Rates

School Year 2009-2010 2010-2011 2011-2012

Repetition (Grade 1)

Pha Oudom 37.6% (37.9%) 38% (36%) 32% (31%)

Pak Tha 14% (12%) 11% (10%) 13.7% (9%)

Meung 14.7% (12.8%) 18% (16%) 18% (16%)

Dropout Rate

Pha Oudom 6.8% (7.5%) 7% (8%) 9% (9.4%)

Pak Tha 7.4% (7.6%) 3% (4%) 4% (4%)

Meung 9.5 % (8.8%) 6% (5%) 4% (4%)

Survival Rate

Pha Oudom 73.1% (71.6%) 75% (74.1%) 76% (76%)

Pak Tha 85.5% (86%) 92% (91%) 90% (91%)

Meung 82% (84.2) 85% (86.1%) 89% (90%)

2.2.3 Objective Three

To improve the quality of primary education in the three Districts

Main Activities:

Train teacher on professional skills

Provide supplementary reading and other learning materials

Local curriculum development pilot

School improvement led by Village Authorities

A range of activities have been undertaken to improve the quality of education in the target schools throughout the

Action, with a particular emphasis on in-service training for teachers, provision of teaching and learning resources,

and school improvement planning

Teacher Training

Supporting in-service teacher has been a main focus of the Action throughout the implementation period. Training

has covered such topics as student-centred teaching and active learning, subject-specific teaching methodology,

multi-grade teaching, and production of teaching materials. Teachers interviewed indicated that they felt that the

training was useful and that they were able to apply it in their classrooms. Parents and VEDC members noticed an

improvement in the learning environment since the beginning of the Action. Children, through an activity designed to elicit the type of teaching methodology being used in their classroom13, indicated that their teachers are using a

more child-centred approach. Although this activity does not necessarily serve as a true indicator of quality of

teaching, it does suggest that teachers in the sample are at minimum trying to use more child-centred methods.

13 Students from grade four and five, eight to twelve per group were asked to respond to statements by holding up different coloured cards to indicate frequency. A total of 109 children (55 girls and 54 boys) participated in the activity.

7

There is also evidence that the quality of training provided by DESB trainers is often low. For example, the multi-

grade teaching study found that most DESB trainers providing the training for teachers had not themselves received

training in the topic, relying on the module provided by MoES. As a result, the training tended to be more

theoretical, using a lecture approach rather than providing practical teaching techniques that teachers could use

directly in the classroom, and thus had little if any impact on multi-grade classroom teaching practices.

Table 5: Quality of Teaching (from Activity with Children)

Statements

% Usually %

Sometimes % Never

Teacher uses students names 43.1 46.8 10.1

When students have a problem in class, the teacher

helps them 33.9 39.5 26.6

The teacher listens to students opinions/ideas 46.8 28.4 24.8

Teacher displays students work 39.5 49.5 11.0

Teacher clearly explains each task in class 70.6 25.7 3.7

Students work in groups 54.1 32.1 13.8

Teacher uses teaching aids (e.g. pictures, musical

instruments, etc.) 48.5 32.1 19.3

Notwithstanding the opinions of the children, the ASLO report published in March 2013, paints a dire picture of the

quality of teaching (based on the results of testing children in grade four) stating that “...the in-service training has

had little impact on teaching.”14 The study also indicates that the training methodology – workshops involving a large

number of teachers from different schools – is at least partially at fault for the lack of quality improvement. In light

of these findings, it is time for Plan and DESB to develop a new strategy for providing ongoing, practical support to

teachers, which will help, improve the quality of teaching and learning as well as giving more attention to the quality

of in-service training provided by DESB trainers.

Provision of Teaching/Learning Materials

Despite the fact that the schools were not in session during the final evaluation, there was evidence that the

teaching/learning materials provided by Plan were being used in the classrooms. For example, the stationery supplies

provided had been used by several teachers to make teaching aids and by the students for drawing and other

activities. In addition, it was clear from discussions that the reading books were being used and valued by the

children. Various methods for providing access to books have been devised. In one school, baskets of books were

distributed to the classes for independent reading. In another, a lending library system was set up so that children

could take books home. In yet another, a reading room had been developed. In several schools, as part of school

improvement, simple bamboo and thatch reading huts were constructed in the school yard. The Mid-term Review

noted that many of the books provided by Plan had been badly stored and thereby damaged many beyond use, and

systems for maximising the use of the books by children were not in place. In the sample schools, it was clear that

steps had been taken to rectify this situation. Children explained that they have read the books many times and

wished that they could now have different books to read.

14 Learning Outcomes and Classroom Practices, A Study in Grade 4 in Pha Oudom and Pak Tha Districts in Bokeo Province, Lao PDR, Palme, Mikael and Hojlund, Gunilla, March 2013, page 28

8

It should be noted that several schools in Pha Oudom and Pak Tha and all schools in Meung were provided with

teaching materials, delivered in large tin boxes, through the World Bank‟s Fast Track Initiative (FTI). In addition, FTI

provided support for school infrastructure development to selected schools in Meung. However, it seems that

there was no coordination between Plan/DESB and FTI in the selection of schools and the delivery of resources.

This speaks to the need for more information sharing and collaboration at both the national and district level.

Local Curriculum Development

Although included in the original proposal, development and implementation of a local curriculum pilot has not been

carried out as part of the Action. In the second half of year two of the Action, a feasibility assessment on local

curriculum development was commissioned by Plan. The results of the study indicated that it would not be possible

to design and implement a local curriculum within the timeframe of the Action, Furthermore, other priorities, such

as the overall low quality of teaching and the fact that the approval process within MoES is unclear, led Plan to

decide not to pursue this activity. However, some indigenous knowledge e.g. vegetable gardening, painting, and

handicrafts, has been incorporated into extra-curricular activities.

School Improvement

In line with Lao Government‟s SoQ policy, Plan

introduced small-scale school grants15 in the

first year of the Action. In total, 57 schools

have received support to install toilets and

water systems, build fences around the school,

erect flag poles and school signs (a

requirement for SoQ designation), develop the

school playground, or carry out a variety of

school repairs. The VEDC takes the lead in

development of the school improvement plan,

preparation of a proposal and budget, and

submission of the proposal to DESB for

approval. The proposal is then passed to Plan

for review. An important element of the proposal is the in-kind contribution of the community, which could take

the form of labour or provision of local materials. These grants serve a dual purpose. The first is to improve the

school environment. The second is capacity building for the VEDC. Schools submitting a plan were offered basic

financial management training which will also help them manage the School Block Grants (SBGs) that are now being

provided by MoES.16

15 See Appendix B for a case study on Plan‟s school improvement grants. 16 The provision of SBGs officially in the 2011/2012 school year, though delays meant funds were not actually received by

schools until the following school year.

9

2.2.4 Objective Four

To strengthen schools as healthy, non-violent and inclusive learning environments

in the three Districts

Main Activities: Pilot in-service training on child rights, child protection and ‘positive discipline’

School-based extra-curricular activities

School-based sanitation and hygiene promotion

Local Radio for child rights promotion;

Child Rights and Child Protection

Although child rights training has taken place for VEDC members, principals, and teachers, having been included as a

topic in training supported by Plan, most of the respondents had no clear idea of the meaning of child rights and few

could name children's four basic rights as enshrined in the Convention on the Rights of the Child. The majority of

the children did not know the term at all.

However, the same cannot be said regarding positive discipline. Not only did all respondents know that physical

punishment is no longer allowed in schools, they could give examples of ways to discipline children in a positive way.

Although it cannot be said that physical punishment has been completely eradicated in the primary schools in the

three target districts, it is clear that it does not happen often and that it is considered unacceptable in the

community. Overall, 89% of the children involved in the activity reported that corporal punishment was used

„sometimes‟ or „never‟. An exception was noted by children in one school who indicated17 that physical punishment

was the norm rather than the exception, although this was denied by the school principal. During the discussion

with the parents, it became clear that physical punishment at school is no longer tolerated. Parents not only

complained about the treatment of their children but also threatened to withdraw them from school in the

upcoming semester. This was brought to the attention of District and Provincial education authorities who agreed

to act on the information.

School-based Sanitation and Hygiene

Plan‟s Basic Education Programme (BEP) team has worked alongside the Water, Sanitation, and Hygiene (WASH)

team since the beginning of the Action to provide support to health and hygiene activities and the construction of

toilets at the school level.

Nine of the ten sample schools have toilets for the children and they are being used according to the children up to

80% of the time18. It was reported that the children who tend not to use the school toilets are those who do not

have toilets at home. However, water supply is limited and often available only in the rainy season. The one school

visited as part of the final evaluation without toilet facilities is outside the village and has no access to a water supply

and no tank to store rain water. Water needs to be carried a long distance uphill. Dry pit latrines have been dug

but after a few days, the children no longer want to use them. It is interesting to note that children in several

schools mentioned that they were required to carry water for the teacher‟s toilets. This seems to indicate that

some teachers are taking advantage of their power relationship with children,

Hygiene education, including hand-washing, teeth-brushing, and personal cleanliness, seems to have been successful.

Hand-washing stations were in evidence at two of the sample schools and promotional materials were displayed in

several schools. Parents reported that their children are bringing the lessons home and teaching other family

members about the importance of hand-washing and personal cleanliness. Some respondents also noted that the

general health of the children has improved, with fewer absences from school, although there is no hard evidence to

support this.

17 The children‟s activity described above also included a statement about physical punishment by the teachers. 18 The children‟s activity described above included a statement about using the toilets.

10

Extra-curricular Activities

According to teachers, principals and children, extra-curricular activities are taking place regularly, with one half day

a week devoted to sports, art, and music. Other activities such as vegetable gardening, weaving, and handicrafts are

also included. This is a way to introduce local culture and customs and is helping to lay the foundation for the

development of a local curriculum in the future. Grass-cutting and garbage collection, rather questionably, are also

included as extra-curricular activities.

The idea of children's clubs as mentioned in the original proposal did not come to fruition at the primary school

level. Poor management and oversight of the team was cited as reasons for this. However, children's clubs were

established, one in each District, at the secondary school level. Two young people interviewed in Pak Tha District

were very positive about their participation in the club. They are learning about child rights and participating in

activities such as drama presentations on rights and the importance of education at the community level. The clubs

seem to be at a very basic level and do not support authentic child participation. Plan‟s Child Right and Child

Participation Assistant in Pak Tha explained that the script for drama presentations must be approved by the local

Culture and Information office. There is potential at primary school level to introduce children‟s clubs and the

interviewees in Pak Tha indicated interest in helping out. Plan will initiate children‟s clubs in primary schools in 2014.

Local Radio Programme

Under an agreement with the Ministry of Culture and Information, students from the Ethnic Boarding House in

Houay Xai, Bokeo‟s provincial capital, presented programmes in Khmu, Hmong, and Lao languages aired on Saturday

and Sunday. These programmes included news (translated from stories presented at the national level), music, and

various spots on child rights, child protection, the importance of education, and public service announcements (for

example about dengue fever). The programmes were targeted at 12 to 18 year olds. The programmes reached a

wide audience, with feedback and responses to call-in activities coming from Bokeo and surrounding provinces and

even from across the border in Thailand. According to the Ministry of Culture and Information, the programmes

reached all of Pak Tha District, but only a few villages in Pha Oudom and none in Meung. Some villages in the sample

indicated that there were few radio sets in the community.

Participation in the programmes had a significant effect on the young people involved (18 students per year – six per

language with equal gender representation). Radio station staff noted that their confidence increased, and in some

cases, their grades improved. Some graduates of the programme continued to help out with training.

2.2.5 Objective Five

To enrich national level development of the ESDF and educational policies by lessons from local

level experience

Main Activities: Participate in the Education INGO Network and Education Sector Working Group

Research and dissemination

‘Learn Without Fear’ campaign

Annual Review and Planning workshops

In Laos, Plan is well-respected among INGOs in general and those focussed on education in particular. Although

Plan has been implementing programmes in Laos for less than a decade (a relatively short time in comparison to

other INGOs), the organization has become a key player in the education sector.

Participate in the Education INGO Network and Education Sector Working Group

Plan plays an active role in both the Education INGO Network of which it is a founding member and in the

Education Sector Working Group (ESWG). These groups meet quarterly. The meetings provide a venue for Plan to

share its experience and lessons learned in primary education in Bokeo with peer organizations. Participation in

ESWG meetings affords Plan an opportunity to influence policies and support their implementation at the national

11

level. Plan recently provided a senior gender and education consultant for a period of 12 weeks to carry out a

gender audit as part of the Education Sector Development Plan‟s mid-term review and was instrumental in the

establishment of the Gender, Disability, and Inclusion Technical Working Group at MoES. In addition, Plan has been

asked to co-chair this group.

Research and Dissemination

Plan has commissioned a number of research initiatives and studies during the Action, including two Assessments of

Learning Outcomes (ASLO) studies, a study on multi-grade teaching practices, and a feasibility assessment on local

curriculum development during the Action. The ASLO research brought to light evidence-based details about the

level of students in the target districts in Bokeo. These studies have been well-received at the national level. They

have not only added to the body of educational research in the Lao PDR, but also have been used to inform policy

discussions. They will also serve as reference for Plan when designing new education initiatives.

‘Learn Without Fear’ Campaign

This national publicity campaign, which included radio spots and a television commercial, was implemented in the

second year of the Action. The content, especially on bullying, physical punishment, and positive discipline, was

directly related to EU funded activities.

Annual Review and Planning Workshops

Planning meetings and workshops took place on a quarterly basis in the three districts throughout the Action and

included staff from PESS, DESB, school principals, the Village Head, and Plan staff. A range of issues relating to the

implementation of the Action were discussed at these sessions. Also included in discussions were improving

relationships between counterparts. The recommendations of the mid-term review and ways to implement them

were also on the agenda.

2.2.6 Beneficiaries

All primary schools in Pha Oudom, Pak Tha, and Meung Districts, 14319 in total, were targeted by this Action.

School enrolment 2012/2013 school year for all three districts was 14,131 students, 6,742 (45%) of whom are girls.

All students were direct beneficiaries of the Action, experiencing the positive results of training of teachers and

principals, accessing teaching and learning materials, and enjoying a cleaner, healthier, and more attractive school

environment. Teachers and principals in every school gained experience and skills through training and follow up

provided by DESB and Plan, and members of the VEDC also profited from training and from the practical experience

of promoting education and preparing school improvement plans. Families and communities as a whole are indirect

beneficiaries of the Action as they are the target for awareness-raising campaigns on the importance of education,

child rights and child protection, and health and hygiene. DESB staff all benefitted from the Action through on-the

job-training and participation in workshops.

2.3 Efficiency

A measure of how economically resources/inputs (funds, expertise, time, etc.)

are converted to results

In line with the OECD DAC definitions of efficiency, this section has a focus on financial management, including the

systems and processes used for the transfer of funds from the centre to the field, as well as rate of expenditures.

This includes a brief analysis of overall expenditures by the Action of the EU grant, as well as Plan's financial

management system, particularly at target district level, and includes some aspects which may have implications for

financial management in future education programming.

2.3.1 EU Financial Report

The Action was largely funded by EU (1,000,000 Euros) though support was also received from other donors (515,

579 Euros). A breakdown of overall expenditures for the full period of the Action is illustrated in the chart below.

This shows that approximately 57% was spent on direct activities in target districts, with a significant proportion of

19 There were 149 schools in the target districts when the Action began. Since that time, six incomplete schools were closed and the children integrated into complete schools in the area. .

12

Human Resources, Office, Travel, Supplies,

etc.36%

Activity Costs (Training,

research, etc.)24%

Teaching Learning Resources

26%

School Improvement

Grants7%

Admin 7% Total Expenditures

the 36% being spent on support costs - salaries (18% was for salaries of personnel directly involved with the Action),

travel costs, office supplies, etc. - within the target province. The remoteness of the target districts and the need to

maintain offices and staff in each district also contributes to a higher percentage of support costs than might be the

case in other projects in less remote areas.

Of the amount spent on direct activities, the annual distribution of teaching and learning resources, namely reading

books and school supplies for all primary schools in the three target districts, was the single most costly item,

resulting in expenditures of almost 400,000 Euros over three years, or 26% of the total budget. While the provision

of these resources has had a significant positive impact on both access and quality (Refer to Section 2.2.3

Objective 3), it is highly unlikely that this level of resource support could be provided in future.

Overall, the breakdown of expenditures would appear to be appropriate for an Action of this nature, with the bulk

of expenditures either involving direct activity costs or support costs. See Appendix G for the final financial

report.

2.3.2 Plan’s Finance System

The final evaluation found that overall, Plan's finance system managed the EU grant efficiently and effectively. The

MTR report in 2011 referred to some of the minor challenges within the system - for example, the need to limit the

total amount of funds that could be transported at any one time to the districts due to the lack of banking facilities in

the district and the need to minimise risk, and late submission of expenditure reports by Plan to DESBs. However,

these are normal challenges to be expected when working in more remote districts, which will hopefully reduce in

future as access and facilities in these districts improves.

While discussions have been held with MoES, PESS and DESB, as well as internally within Plan, on the possibility of

allocating budget directly to the PESS/DESB for conducting activities which they would then manage, this did not

happen during the implementation period of the Action. In practical terms, this has meant that all payments to

partners in the field were made directly by Plan finance staff. This was challenging at times, particularly when

multiple activities were being conducted simultaneously in target districts20 and there was only one member of the

Plan staff authorised to make payments for costs such as per diems and travel. The possibility of passing over more

responsibility for financial management to partners was constrained by concerns regarding capacity of DESBs to

manage these funds as well as the terms of the Memorandum of Understanding between Plan and MoES. However,

Plan is now considering how this might best be done in future interventions - for example, by transferring relatively

small amounts initially, with partners taking responsibility for disbursement and reporting themselves. This could

then be scaled up over time as partners demonstrate their capacity to manage larger amounts of funding. As was

pointed out in the MTR report, there is a precedent, as funds have been allocated and distributed monthly by Plan

directly to the Office for Information and Culture at the provincial level for the production and broadcasting of the

radio programmes.

20 This could potentially be reduced by joint planning among Plan sectors at district level. Refer to Section 3.2 for more details.

13

2.3.3 Planning and Budgeting

Overall, the Plan annual planning and budgeting system has worked reasonably well with longer term plans and

budgets produced at the provincial level and then district level plans and budgets developed from this on a monthly

basis. The MTR found that it was difficult for Plan District Education Coordinators to see projected costs for the

next few months, as the provincial budget combined all three districts rather than having them as separate budget

lines. This had the potential to affect efficiency when individual districts did not know what their budgets were for

the next quarter or six months. This situation had changed by the time of the final evaluation, with Plan, especially

the education team, separating out budgets per district and per activity, as well as sharing these budget lines with

MOES, PESS, and the DESB in target districts.

One issue will which will need to be addressed in future is the mismatch between Plan and donor (in this case EU)

financial coding systems. This has resulted in more staff time being allocated to adjust/break down expenditures

coded under the Plan system to meet EU coding requirements. As there is rarely a good match between any

recipient organisation's coding system and that of the donor, this is a common occurrence. If possible, this needs to

be addressed at the outset, through adjusting the organisation's financial coding system and software so that

expenditures can be automatically assigned to both coding systems when input into the system.

2.4 Sustainability

The continuation of benefits from a development intervention after major development assistance has been completed; the probability of continued long-term benefits.

It is difficult to gauge the longer term positive benefits of an Action that was completed only a few months ago.

However, it is possible to consider the likelihood of sustainability by examining the project design and the current

context in which the Action has been implemented.

Certain elements of the design promote sustainability. Training components, which increase knowledge and skills

and encourage attitudinal change, can lead to long term gains for children. In this Action, the focus on training of

teachers and principals in child-centred teaching methods, multi-grade teaching strategies, materials development,

and positive discipline techniques has begun to be manifested in the classrooms. VEDC training which has not only

helped to clarify the roles and responsibilities of this Committee but also has developed skills that can be used in the

development of a School Development Plan and future management of the School Block Grants has the potential for

long term benefits.

As part of the Action, Plan has undertaken a number of research initiatives relating to primary education in

cooperation with the Lao Government e.g. the ASLO study, and the Multi-grade Teaching study and has completed a

gender audit of the ESDP as part of its mid-term review. These efforts contribute to policy and planning discussions

at the national level and have the potential for influencing long-term change.

Some elements of the Action that have contributed to the overall achievement of project objectives in the short

term (e.g. provision of school supplies to children and teaching learning materials to classroom teachers, financial

support for per diems, and transportation costs to DESB staff for visiting schools) do not ensure benefits in the long

term once funding is no longer available. However, at the very least, they have demonstrated what is possible once

more Government funding is available for education.

The provision of school supplies to children such as notebooks, pens, pencils, school bags etc. was cited numerous

times by parents as one of the reasons they are able to send their children to school as otherwise the cost of these

items, especially in large, poor families is too prohibitive. It is yet to be determined if lack of provision of these items

will negatively impact the enrolment rate. However, it does seem clear that other factors, such as campaigns at

village level and the involvement of the VEDCs in promoting education, have also positively impacted school

enrolment.

Sustainability in education projects is not only influenced by the design of the project but also by the context in

which it is implemented. The state of education in the Lao PDR is still below international norms; the Government

is struggling to achieve the MDGs and EFA targets by 2015. However, the country‟s status as one of the world‟s

least developed countries (LDC) coupled with the worldwide effort to ensure the achievement of the MDG and EFA

benchmarks warrants that assistance from major donors such as the EU, the World Bank, and AusAID is made

14

available, particularly in education. This ongoing support to education will ensure that gains made to date can be

consolidated and thereby lead to sustainability in the future.

2.5 Impact

Positive and negative, primary and secondary long-term effects produced by a development intervention,

directly or indirectly, intended or unintended.

The immediate impacts of the Action have already been detailed in section 2.2 Effectiveness. While other factors

have contributed in different ways, the Action appears to have had a significant impact in terms of increasing access,

as evidenced in increases in the NER in the three target districts. There is also some evidence to suggest that the

Action has contributed to improvements in teaching and learning as well as in school management. A few months

after the end of the Action, it is perhaps too early to say what the long term effects will be. However, despite the

fact that learning outcomes have not yet improved significantly, there is little doubt that a stronger foundation for

primary education has been established than existed before the Action, with more children in school, an enhanced

awareness of child-centred teaching and positive discipline on the part of teachers, more effective school

management by principals, and a better understanding of their roles on the part of VEDCs. DESB staff have also

benefitted from both the training provided as well as funding to enable them to carry out their roles in terms of

providing support for schools in their districts. In this way, the capacity of the staff of the DESBs has been raised and

their ability to work with schools and communities has been improved. However, more work needs to be done in

this area, as most of the training provided was to enable DESB staff to better support implementation of planned

activities, rather than a comprehensive effort to develop the capacity and functioning of DESB as a whole..

3. MANAGEMENT AND PARTNERSHIP

3.1 Management While a full assessment of the management arrangements and organisational structure within Plan was not a main

focus of the final evaluation, questions related to this were included in interviews with Plan staff and counterparts,

and the organisational chart below was reviewed. Apart from some issues related to communication and

coordination with partners and financial management, which have been covered elsewhere in this report, some

aspects of the Basic Education Programme (BEP), which may need attention in future, were identified. These include

the difficulties related to ensuring adequate education technical support for activities in the field, and the capacity of

current staffing levels in the Country Office to support both ECCD and BEP.

3.1.1 Education Technical Support

At District level, the MTR found that a disproportionate amount of the Plan District Education Coordinator's and

Coordinator's Assistant's (in Pha Oudom) time was being taken up with administrative work, especially related to

the distribution of teaching and learning resources as well as the scholarship programme, and it was recommended

that Plan give consideration to hiring or assigning an additional staff member to focus on these more administrative

tasks. This limited the amount of time available to Plan staff to provide technical support to activities in schools.

There is a further ongoing constraint in that it is difficult to recruit staff with an appropriate technical background in

education and who are willing to be based in more remote areas. In addition, the BEP Provincial Manager was also

expected to play a significant technical support role in the target districts, in addition to quite substantial

management responsibilities.

At the time of the final evaluation, it was found that these challenges continued to exist. While there are no easy

solutions, ways of dividing responsibilities and ensuring adequate staff to provide both technical support and

administrative support need to be found. The provision of higher salaries for staff with a technical background in

education may also help with recruitment.

3.1.2 Current Staffing Levels in the Country Office

In 2012, overall responsibility for the ECCD and BEP Programmes were merged with a reduction in the total

number of staff, from four to three, an ECCD/BEP Programme Manager, an ECCD BEP Programme Officer and an

ECCD/BEP Program Assistant. It appears that workloads have increased as a result, with a strong focus on

monitoring and particularly reporting. If funding allows, consideration could be given to increasing the number of

staff to original levels, possibly with more capacity to provide technical support to activities in the field. While ideally

technical staff should be field based, the difficulty in recruiting suitably qualified with a strong education background

who would be willing to be field based may prevent this from happening.

15

Plan International Laos Organizational Chart

The points covered above have been raised not as faults in terms of management of BEP, but for further discussion,

but so that the lessons learned from these and other aspects of management of the Action can inform the design of

Plan's future work in the education sector.

3.2 Synergies among Plan Sectors The Action involved inputs from the both the WASH and Child Rights/Child Protection teams. Plan teams at the

district level meet monthly to share information on progress to date, discuss issues and their plans for the upcoming

month. According to staff, although individual plans are shared, there is no joint planning among the teams and there

are no efforts to finds ways to complement each other‟s work systematically. Teams in the field have the attitude

that it would be too difficult and time-consuming to work together in this way. Coordination takes place on an ad

hoc basis. Strong leadership at the local and provincial level could remedy this situation.

3.3 Partnership Plan works with MoES under a five-year Memorandum of Understanding, which will expire in 2014. There are

formal partnerships with the PESS and the DESBs in Pha Oudom, Pak Tha, and Meung Districts. Plan has been

provided with office space at each of the three DESBs, which has provided opportunities to work closely with DESB

staff on the activities involved in the Action. However, this has not always guaranteed efficient and effective

cooperation and timely implementation of activities. In some cases, there have been basic communication problems,

with information not flowing freely between the two organizations, while in others the Action priorities have gotten

lost among other education initiatives in the district. This can also be said for the provincial level. At the national

level, various MoES staff indicated that the communications need to be improved. This situation is discussed further

in section 5 Key Challenges and in 7 Recommendations below.

Country Director

Gender Manager Program Director

BEP & ECCD Manager

BEP & ECCD Officer

BEP & ECCD Assistant

WASH Manager

MNCHN Manager

WASH & MNCHN Assistant

DRM Coordinator

Grant Coordinator

PU Manager

DTL x 3

BEP

ECCD

Sponsorship Officer

WASH

Finance/Admin

MNCHN

CP/CR Officer x 2

Scholarship Coordinator

Communication Manager

Communication Officer

Sponsorship Manager

Finance-Admin Director

ICT Manager/ Safety & Security

Focal Point

Finance Coordinator

Grant Accountant

Account Officer

Data Coordination

Officer

Procurement and Logistic Officer

Driver

Administrative and Government

Liaison Officer

Guard x 3

Cleaner x 2

People & Culture Manager

People & Culture Officer

People & Culture assistant

16

4. CROSS-CUTTING ISSUES

Through the Inclusive Education National Strategy and Plan of Action, MoES promotes „the equitable provision of

quality education in order to reduce and eventually eliminate disparities in access to education of disadvantaged

groups, especially girls and women, ethnic groups, people with disabilities‟21. The issues of gender, disability, and

ethnic groups are cross-cutting in terms of this Action.

4.1 Gender Gender issues are inherent in all aspects of the Action from access to primary education at the school level to policy

discussions at the national level.

According to Plan‟s Gender Equality Programme Criteria Checklist22, this Action can be categorized as Gender

Neutral, that is, recognizing gender issues but not addressing them directly, although some activities and campaigns

have highlighted the importance of girls attending school. This Action does not reach the level of Gender Aware as

it does not tackle the root causes of gender inequality (social norms, cultural beliefs, values).

Notwithstanding the progress that has been made in improving gender parity in enrolment at the primary school

level, gaps still remain and barriers to girls‟ education, particularly in remote areas, abound. Many of these are

underpinned by attitudes and practices of different ethnic minorities23. However, distance to school, language of

instruction, and inadequate sanitation and hygiene facilities also represent additional impediments24. Lack of qualified

female teachers in remote areas who can serve as role models and curriculum and instructional methods that do not

specifically address the needs of girls, are also cited as obstacles to girls‟ education.25

The VEDCs, by nature of the village positions of the members, rarely have more than two women as members.

Although there is no policy to prohibit it, women are not usually the Village Head or Head of Security. In addition,

as noted in the MTR, women who are represented are often reluctant to participate in training or other activities, or

to offer their opinions, deferring to their male counterparts. This is not a situation that the Action could hope to

change within the implementation period, but there is the potential to influence attitudes longer term, through, for

example, giving gender issues similar prominence to child rights in all training supported by Plan.

The gender audit, recently conducted by a senior Plan gender expert as part of the ESDP mid-term review process

recommends three key changes within the entire Lao education system in order to improve gender equity and

equality: changes in policies, changes in processes, and changes in systems and structures.26 Highlighting these

changes that are needed is an important step, but much more will be needed to ensure their implementation.

4.2 Disability Children with disabilities as defined by the National Strategy and Plan of Action on Inclusive Education27 are those

who have long-term physical, mental, intellectual, or sensory impairments, which, in interaction with various barriers,

may hinder their full and effective participation in society on an equal basis with others.

Although not visible during the evaluation process, informants noted that some disabled children (blind, deaf, or with

other physical disabilities) are present in the villages and some are attending school. Teachers were taking steps to

try to support their learning within their classrooms, although without having received training in how to do so.

However, there seemed to be no clear understanding of the term disabled among the teachers and principals and

there was no mention of children with other disability types (such as intellectual disabilities) despite the fact that a

low-functioning boy with Down‟s syndrome attends classes at one school.

21 National Strategy and Plan of Action on Inclusive Education 2011-2015, Ministry Of Education And Sports, 2011 22 The checklist includes the following categories: Gender Unaware, Gender Neutral, Gender Aware, and Gender Transformational. 23 Social and Cultural Barriers to Rural Adolescent Ethnic Community Girls Accessing Lower Secondary Schools in Northern

Lao PDR, Pearce, Lyndal, ChildFund and Plan International, November 2011 24 Mid-Term Review of the Education Section Development Plan (ESDP), Gender Analysis – Summary Sector Report, Edwards, Dr. Jan, August 2013 25 Ibid 26

Ibid 27 Op. cit.

17

Although „equal inclusion of all children including children with disabilities‟ was mentioned in Result Four of the

original proposal, no specific training has been undertaken in inclusive education. There was also no evidence of any

adaptation of facilities for disabled students (ramps, toilets, etc.) in the schools themselves. Children with disabilities

are a hidden and marginalized population, particularly in remote areas.

4.3 Ethnicity/Language The target areas for this Action include both a large number and a wide range of ethnic minorities. (In one district,

eight different ethnic minorities are represented). Many members of these groups lack facility in the Lao language

and are unfamiliar with lowland culture. Ethnic languages are spoken in their communities and many people have

little contact with Lao officials. Their lack of Lao language skills directly impacts all facets of the Action.

In the classroom, where the language of instruction is Lao, children struggle to make sense of lessons. For many, the

only Lao language that they hear or have to use is at school. This compounded by the fact that many are in multi-

grade classes, taught by a teacher who has received little if any training in how to teach both multi-grade and

children who do not speak Lao. This is one reason for the high repetition rates in grade one. As noted in the ASLO

study, there are few ethnic minority teachers, which not only eliminates the option of some translation or basic

instruction in their first language but also limits interaction with parents. Lack of Lao language skills also impacts

negatively on the training of the VEDCs.

5. KEY CHALLENGES

A host of challenges were experienced in the implementing this Action. The four most significant challenges are

outlined below.

1) Remote, Isolated Target Districts

Selection of the three target areas was

based on their designation as poor or

poorest districts in the country. A

contributing factor to this designation is

their remoteness and isolation, and their

lack of access to infrastructure, services, and

schools. Some schools in the three districts

do not have road access thereby requiring

long treks to reach them, others are only

accessible by river thereby involving a

dangerous speed boat journey, while others

are far from the district town on single

vehicle tracks, which requires the use of

four-wheel drive vehicles and which wash out regularly during the rainy season. Difficult access translates into less

support to teachers, principals, and communities. It should also be noted that the district towns in which Plan offices

are located also lack some basic services and thereby present hardships not present in other areas of the country.

Providing on-going support to these schools necessitates planning, commitment, and considerable effort.

2) The Calibre of Teachers and Principals

The remoteness and the isolation of the districts and the schools, and the concomitant lack of facilities and services

have presented an additional problem. As in other countries, the best, most qualified and perhaps most committed

teachers tend to opt for teaching positions in urban centres, in the best schools. The professional competence of

teachers and principals in remote areas is generally low and the quality of education is negatively impacted as a

result. That is not to say that there are not exceptions to this „rule‟. Indeed, as part of the evaluation sample, there

were some teachers and principals in more remote schools who are competent, committed, and current in their

teaching methods and some teachers opt to return to the home areas to find positions. However the overarching

trend is for the weakest educators to be teaching in the remotest areas of the districts.

18

3) Language Issues

Also inherent in working in the remote mountainous areas of Bokeo province is the presence of ethnic minorities,

many of whose members have little or no contact with lowland Lao people and who speak Lao as a second language

if at all. The challenge here is teaching children who come to school with no Lao language skills and who perhaps

only hear Lao spoken by their teachers in the classroom context. According to the ASLO study (and validated in the

evaluation fieldwork sample), there are few ethnic minority teachers (especially Hmong) and few, if any, who speak

any of the ethnic languages. Inextricably entwined with language is culture, and cultural disparities between

lowlanders and the ethnic minorities (and indeed among the ethnic minorities themselves) are substantial. Thus it is

difficult for teachers to understand and communicate with their students and for students to understand and

communicate with their teachers. Couple this with the overall low level of teacher competency and the extent of

this challenge becomes apparent. It is even more difficult to provide them with quality primary school education.

4) Partnership with Education Authorities

One of the main strengths of the Action – collaboration with education authorities at the local, provincial, and

national level – also presents one of the most formidable challenges. Plan International and the Ministry of Education

and Sports each have their own organizational culture, rules, regulations, policies, and procedures that have often led

to a disconnect in terms of communication, administration, and implementation of the Action.

Communication is a serious issue not only between the two organizations at all level but also within the

organizations themselves. Myriad examples could be cited in this report but both organizations are well aware of

the situation. Although some concrete steps were taken during the course of the Action, discussions with MoES,

PESS, and DESB partners during the evaluation indicated that there is still work to be done in this area. More steps

must be taken to improve this element in any future collaboration. Administration and implementation of the Action

have also been a challenge in that neither organization seems to fully understand or accept the other‟s systems.

Furthermore, deadlines and other protocols are often not met because of this. It should be noted that this is not an

issue that is specific only to Plan. All INGOs working in the Lao PDR face challenges in working with government

partners and improving communications and nurturing relationships are always priorities.

6. LESSONS LEARNED

The lessons outlined below do not represent ground-breaking realizations to be applied universally to education

projects but rather can be considered truisms that should inform the design of future education initiatives.

1) Notwithstanding the discouraging findings of the ASLO studies, there have been improvements in primary

education in the three target districts over the 42 months of the Action. However, the starting point was low,

progress has been slow, and the quality of teaching has not changed significantly. This leads to the realization

that improvement in the quality of primary education requires long-term programme commitment,

beyond the scope of a single donor-supported project. Although the Action was successful in bringing

positive change in several areas, it is clear that many more years are needed, particularly in terms of ensuring

quality education.

2) This Action has been implemented in all primary schools in the three target districts, an approach promoted by

MoES. Although there are obvious benefits of this approach, it also tends to dilute the efforts rather than

concentrate them on the schools in most need of support. While the 'whole district' approach has ensured that

a very basic foundation is in place, hopefully throughout the target districts, given the lack of significant progress

towards quality primary education, a district-wide approach may not be the most effective method for a future

phase. The lesson to be learned here is that a new approach to supporting the development of primary

education services and improving the overall quality of teaching and learning (such as focussing on the

weakest schools in the district) should be explored for the future.

3) Plan has worked in partnership with the MoES at district, provincial and national level to implement the Action

activities from the outset. Although that a partnership approach to project implementation is challenging

and that the relationship needs continuous nurturing is perhaps accepted as fact, there is still a lesson to be

learned about the difficult nature of partnership relationships and how they should be managed.

4) The prohibition of corporal punishment in schools is relatively new for Laos but it is now enshrined in both the

Child Protection Law and the SoQ guidelines. Often, however, the translation of policies at the national level

19

into action at the local level is a long and arduous process. In the target districts in Bokeo province, anecdotal

evidence from children, teachers, parents, principals and other members of the school community, indicates that

physical punishment in primary schools has become the exception rather than the rule. The lesson here is that

through concentrated efforts aimed at both educators and the school community and the provision of

alternative, positive discipline techniques, the elimination of physical punishment in schools can be

achieved in a relatively short period.

7. RECOMMENDATIONS

As this is the final evaluation of the Action, recommendations are aimed at informing the design and implementation

Plan‟s work in the education sector in Bokeo province in the future.

7.1 Governance/Management Ongoing training and upgrading for principals is an important element in improving school management and

enhancing school quality. Throughout the Action, the training of principals seems to have been more theoretical

than practical; it did not seem to help them address the day-to-day issues facing them in their schools. It is

recommended that a new, more practical approach be taken to principal training and support. Regular

principals‟ meetings, focusing on professional development, problem-solving, and peer support could be held within

the cluster facilitated and supported by DESB and Plan.

According to respondents in the evaluation, the number and quality of school monitoring visits has increased since

the beginning of the Action. In preparation for future work in the primary schools, it is recommended that Plan

and DESB undertake a joint review of the system of monitoring and support, analyzing what has been most

and least successful with a view to refining and streamlining these efforts in the future.

The 'whole district' approach to improving the quality of primary education ensures that every school receives

support towards achieving this goal. However, after more than three years of implementation, it is recommended

that more attention be given to weaker schools, teachers, and principals. This could take the form of

providing more consistent support to the most remote schools or using a school assessment system to determine

the schools that most need support.

The Education Management Information System (EMIS) is an important tool for gathering educational data and

provides a platform for planning, for analyzing trends, and documenting crucial statistics. It is also particularly

important in the verification of statistics related to the achievement of the 2015 targets of the Millennium

Development Goals (MDG) and Education for All (EFA). It is recommended that Plan continues to support

rigorous data collection and analysis and provides technical support at the district and provincial education

authorities.

Training and support to VEDCs as part of the Action have begun to show results in the target communities. Many

VEDCs are taking an active role, serving as a bridge between the school and the community, promoting education,

and helping to develop school improvement plans. It is recommended that Plan continue its training and

support of VEDCs, focusing on the weaker ones and making use of stronger ones as models to be emulated.

7.2 Education Quality The model used in the Action to help improve the quality of teaching and learning and school management in the

target schools was in-service training followed by monitoring and support from DESB . As pointed out in the ASLO

study, this model does not seem to be effective. There seems to be a number of issues related to the training

including the quality of Training of Trainers workshops, the in-service training curricula, and the training

methodology. In preparation for a new phase of the Basic Education Programme, It is therefore recommended

that a review of the various aspects of in-service training be undertaken with a view to streamlining and

improving it.

Furthermore, it is recommended that Plan and DESB include an additional element to in-service training by

including a more practical peer support approach within the existing cluster system. This could take the form

of group lesson-planning among teachers of the same grade, with discussion and feedback after the lessons have been

taught. Teachers with specific expertise e.g. maths teaching or materials production could offer mini-workshops to

20

fellow teachers. These sessions could be teacher-led with support and facilitation provided by DESB/Plan. These

professional development sessions could take place one half per month at schools within the cluster.

In addition to focusing on peer support at the cluster level, it is recommended that Plan and DESB develop a

strategy to foster professionalism and a sense of pride among teachers and principals in their work. This can

be done by highlighting the positive in monitoring visits and by recognizing teachers and principals for their efforts

through an annual awards system.

Setting up of demonstration schools was suggested in the ASLO study. This may not be practicable in the target

area. However, it is recommended that Plan and DESB consider supporting teachers who are skilled in a specific

area to set up model classrooms. For example, there might be a model class for multi-grade teaching or for Lao

language, which could be used for demonstration purposes.

School supplies and teaching learning materials accounted for 26% of the Action budget. Notwithstanding the

positive impact this had both for children and for teachers, it is clearly unsustainable to provide these consumables

on an ongoing basis. Therefore, a two-pronged approach to provision of materials is recommended for future

initiatives; first, Plan should scale-down this type of direct support while placing more emphasis on helping

schools to allocate some of the SBG funds to the purchase of materials such as supplementary reading

books; and two, focus the provision of school supplies on a limited number of smaller, more remote schools

which, even with the SBGs, will probably not have much of a budget to work with due to low enrolment

numbers.

7.3 Child Rights/Child Participation Although some steps have been taken to promote child rights in the target areas, the respondents in the evaluation

did not seem to have even a basic understanding of the meaning of child rights. For example, two teachers thought

that the concept of child rights came from Plan. Although there has been success in promoting positive discipline,

this is only one aspect of child rights. It is therefore recommended that Plan adopt a more holistic approach

to child rights education that includes children, parents, and all members of the school community with a

stronger focus on what child rights means in terms of their everyday lives.

7.4 Health and Hygiene Throughout the evaluation field work it was obvious that not much attention is being paid to keeping school

classrooms and school grounds clean and tidy. Most classrooms were left full of garbage for the school break.

Collecting litter at primary schools seems to be considered an extra-curricular activity to be carried out once a

week. This approach is not fostering good habits in the children. It is recommended that the Plan WASH team

undertake an anti-littering campaign in the schools that focuses on a positive approach to the prevention of

littering.

7.5 Research Research has played a significant role in Plan‟s work in primary education. In particular, the ASLO studies and the

Multi-grade Teaching study have provided crucial information to inform programming at the local level and policy

discussion at the national level. It is recommended that Plan continues to carry out research initiatives relating

to primary education in the Lao PDR. For example, research could include a study on the correlation between

participation in pre-school programmes and success in primary school (given Plan‟s involvement in both ECCD and

primary education in Bokeo). Another study could carry out a survey and mapping exercise of the number of pre-

primary and primary school age children with disabilities, the type of disability, and their location in relation to

schools. This survey could inform planning and training in the future. Although not pure research, Plan could also

support study visits to inclusive schools in Thailand (as suggested by Ajaan Yangxia Lee, Director of Inclusive

Education Centre). Another area for potential research is lessons learned in positive discipline initiatives in Laos,

which could be carried out in cooperation with other INGOs (e.g. Save the Children International, ChildFund) with a

view to working with MoES/RIES to develop a harmonized curriculum for pre- and in-service training of teachers and

principals on positive discipline It is further recommended that Plan work closely with the Research Institute

for the Educational Sciences (RIES) at MoES in developing research initiatives and support on-the-job

capacity building with RIES staff.

21

7.6 Other As noted elsewhere in this report, there have been communications issues at all levels between MoES and Plan. Plan

has taken steps throughout the Action to address these but during the evaluation process it was made clear by

Ministry staff the problems persist. Cooperation and a good working relationship with the Ministry of Education are

imperative to the implementation of Plan‟s education work. It is recommended that in the preparation process

for new education initiatives, Plan and Ministry staff from the national, provincial and district level work

together to define what is necessary to build a good relationship and outline and commit to the concrete

steps that must be taken to ensure that the relationship works well for the benefit of the children who are the

target of the work. This could take the form of a workshop/retreat facilitated by an external consultant.

Three different Plan teams were involved in this Action – education, WASH, and Child Rights and Child

Participation. From discussions during the MTR and the evaluation, it seems that, although information and plans

were shared, little or no joint planning was carried out among the three teams. For future education work, it is

recommended that teamwork, joint planning, and a more holistic approach be implemented to maximise

synergy. Monthly joint planning could be facilitated by the District Team Leader.

8. CONCLUSION

The Strengthening Local Governance and Participation for the Realization of Children’s Right to Education initiative was a

well-designed, comprehensive programme in line with MoES policies and guidelines. It made a significant

contribution to the efforts of the Lao Government to meet the MDGs and the EFA target in the three target

districts of Pha Oudom, Pak Tha, and Meung in Bokeo Province. During the 42-month implementation period,

progress was made towards the achievement of each of the specific objectives. While the Action has contributed

significantly to improving access, as evidenced by increased net enrolment rates, there have not been significant

advances in terms of learning outcomes for children. However, there are indications that a more active, child-

centred approach to teaching is being used in the schools, signifying that teacher training and the follow up support

provided by Plan and DESB are showing results. Through its evidence-based advocacy and leadership at the national

level, Plan has become one of the key INGO players in the education sector.

Although advances were made, further support to improving the quality of primary education is still necessary and

Plan's commitment to the three districts over the next few years will help to ensure that the gains made in this

Action can be consolidated. Based on the results of this evaluation, efforts should be made to redefine and

streamline activities to address current needs.

__________________________

22

Appendix A: Positive Discipline in Schools:

An Emerging Success Story Background:

The United Nations Study on Violence against Children, presented at the General Assembly in 2006

brought to light the extent to which children are subjected to violence at home, at school and in the

community. In schools, corporal

punishment, in various forms and

in varying degrees, has been used

to „manage‟ children‟s behaviour.

Education authorities often not

only fully sanction physical

punishment but also stipulate the

style and extent of the

punishment that can be meted

out. In the developed world,

local policies and national

legislation regarding corporal

punishment in schools varies

from country to country.

In the Lao PDR, according to the

Law on the Protection of the

Rights and Interests of Children,

which came into effect in 200728, every child has the basic right “to be protected from all forms of physical

and moral abuse” and to be “protected from the use of violence, physical punishment or inappropriate

words or acts that affect the dignity of children...”. In addition, the Lao Government‟s Schools of Quality

Guidelines state that based on the Convention on the Rights of the Child, schools must be “... free from

violence and abuse...”

Positive Discipline

Positive discipline is an approach to managing children in the classroom, which is based on mutual respect

and cooperation and works on the basis of positive reinforcement. It offers an alternative to physical and

emotional punishment by teachers, and helps the children to behave well without the threat or use of cruel

and harmful punishments. Positive discipline is complemented by the use of child-centred, active learning

methodologies in the classroom. These techniques provide a stimulating learning environment in which

children can work together to analyze and find solutions to problems, helping them to feel empowered,

confident and engaged. Training in positive discipline techniques has been part of

the in-service training in the target districts of Bokeo

province. Teachers and principals have not only learned

the theory behind positive discipline but have also been

provided with alternative techniques to physical

punishment.

The training was also reinforced by Plan‟s Learn Without

Fear Campaign in Laos implemented in 2011 as a national

28

http://www.crin.org/resources/infodetail.asp?ID=22182

In October 2008, in response to the UN Study on Violence against Children and based on an extensive internal survey, Plan launched Learn Without Fear, a worldwide campaign to end violence against children in schools including not only physical punishment, but also bullying and sexual abuse.

23

publicity campaign, which included radio spots and a television commercial.

Positive Outcomes

During the final evaluation process, both principals and teachers spoke about positive discipline and its

application in their schools and

classrooms. Most mentioned

alternative techniques to physical

punishment that they learned

through Plan‟s training which also

provided them with tools that they

can use in the classroom. One

principal described a „case

conference‟ approach that they use

in her school in which strategies for addressing specific behaviour issues

are discussed at monthly staff

meetings. However, the most

revealing information regarding

corporal punishment and positive

discipline was provided by children

during the mid-term review (MTR)

and the final evaluation.

As part of an activity designed to elicit information on what happens in their classrooms, children were asked to respond to statements, including a statement related to corporal punishment, using different

coloured cards to denote frequency,. Children involved in the activity came from grades four and five in

the sample schools visited. The two tables below are based on the responses of approximately 160

children during the mid-term review and the final evaluation. There is a notable difference in frequency of

corporal punishment between the two reviews with an increase in the percentage of children saying that

they never experience corporal punishment from 44% at the time of the MTR to 62.4% by the time of the

final evaluation. Although this activity does not constitute rigorous research, it does indicate a positive

trend towards the elimination of corporal punishment in the target schools as a result of the training

provided in positive discipline.

Mid-term Review

Statement % Usually % Sometimes %Never

Teacher uses corporal punishment (e.g. beats,

slaps, etc.) 4 52 44

Final Evaluation

Statement %Usually %Sometimes %Never

Teacher uses corporal punishment (e.g. beats,

slaps, etc.) 12 26.6 62.4

One school (Houay That) which was part of the sample in both the MTR and the final evaluation, clearly

illustrates the progress that is being made. During the MTR, 100% of the children (12) reported that their

teachers were using corporal punishment in class: „sometimes‟ whereas in the final evaluation, 100 % of the

children (13) reported that their teachers never use corporal punishment in class.

24

An aberration is apparent in the increase in the percentage in the „usually‟ category from the MTR to the

final evaluation. This result comes from one school in which all the children corporal punishment was the

norm in their classrooms. Parents of these children confirmed this during their interview. Parents also

expressed their deep dissatisfaction with this approach to discipline. It is simply no longer acceptable in

their community. The parents also threatened to keep their children at home at the beginning of the new

term. A positive outcome to this situation did take place. The MoES officials from the national and

provincial offices who were members of the evaluation team were able to bring this situation to the

attention of the local DESB official who agreed to act on it.

Conclusion

Plan‟s efforts in promoting positive discipline coupled with Lao Government commitment to eliminating

corporal punishment in schools are beginning to show promising results. These efforts should be

continued in future work in primary education. In addition, Plan could explore the possibility of carrying

out a joint research project on lessons learned in positive discipline initiatives in Laos with other INGOs

(e.g. Save the Children International, ChildFund) with a view to working with the Research Institute for

Education Sciences (RIES) within MoES to develop a harmonized curriculum for pre- and in-service training

of teachers and principals on positive discipline,

25

Appendix B:

Plan’s School Improvement Grants

Many schools in the Pha Oudom, Pak

Tha, and Meung Districts, Bokeo

Province, especially those in the poorest

and most remote villages, are very basic

bamboo structures with thatch roofs

and makeshift student desks and chairs.

Other schools lack toilets and a water

system, while still others are in need of

repair. They do not contribute to a

quality learning environment for

children. As part of its Basic Education

Programme, funded by the European

Union, Plan introduced Toilets and

school fences have been provided by Plan school

improvement grants.

The main purpose of these grants was to provide support to the schools to make basic repairs to the

school, improve the facilities, or to enhance the school grounds. Over the 42 months of the Action, Plan

provided 57 school improvement grants to schools in the three target districts of Bokeo. The total value

of the projects was 102,301 Euros (less than 1,800 Euros per grant).

Acquiring a school improvement grant from Plan

requires a step-by-step process designed to ensure

transparency and accountability at all levels. The

Village Education Development Committee

(VEDC) is responsible for the process. The first

step is analyzing and prioritizing the needs of the

school. Children are involved in consultations,

helping to identify problems and ways to solve

them. Then a proposal is developed which

includes the budget and the in-kind contribution of

the community. (This input usually takes the form

of village labour or local materials.) The proposal

and workplan is submitted to Plan through the

District Education and Sports Bureau (DESB) for

vetting. Plan prepares a cost benefit analysis,

including a review of materials Reading huts provide a place to relax and enjoy a book. that can be sourced locally or must be delivered. Plan plays the role of coach during the initial steps and

then follows up with DESB to support, monitor, and offer advice on the management of the grant.

26

Plan has used the school improvement grants

process to introduce various aspects of the

Schools of Quality (SoQ) concept.

In addition to achieving the underlying objective of the

grants, there are a number of „value added‟ elements to

Plan‟s school improvement initiatives. The process of

analyzing and prioritizing needs, preparing a proposal

and work plan, developing a budget, enlisting

community contributions, implementing the project,

and then reporting on and preparing a financial

acquittal, has provided direct capacity building for the

VEDC by offering hands-on experience with concrete results. These initiatives also serve to encourage

community participation in the school and promote ownership and empowerment.

This experience has also helped to lay the groundwork for developing and implementing the School

Development Plan, an integral facet of the SoQ Minimum Standards. Plan, together with their DESB

counterparts, has also provided basic accounting and book keeping training for VEDCs who received

grants. These skills are not only useful for the management of these grants but will also be crucial in

managing school block grants as they come on stream.

The following tables provide details of the school improvement grants provided by Plan to schools in the

three target districts in 2013.

School Block Grants

School block grants (SBGs), introduced by

MoES in 2011, provide a budget, based on

student enrolment, for schools to use to

operate the school. In its first year, the

grant amounted to 20,000 LAK per

student. It is envisioned that the grants

will grow to 100,000 LAK per student.

Management of the grant is the

responsibility of the VEDC.

In Bokeo, the distribution of the grants

for the 2010/2011 school year began

during the 2011/2012 school year. Funds

were distributed in two tranches of 10,000

LAK. At the time of the evaluation, not all

schools in the sample had received the two

tranches for the previous school year,

while some had received both and one

(Pounglad) had already received the first

instalment of the second year (30,000 LAK

per student). There also seemed to be

some confusion at school level regarding

the amounts schools were entitled to as

well as the timing of disbursement.

Unlike with the Plan school improvement

grants, no prior training was provided to

the VEDCs and there was no specific

analysis, support, and advice provided on

how to use the grants. The Plan scheme

has a built-in capacity building element,

which helps to ensure good management

and accountability.

Schools of Quality

Piloted by UNICEF and adopted by MOES,

the development of Schools of Quality

(SoQ) is a strategy designed to help the

Government achieve the EFA and MDG

targets while involving the whole school

community to improve the quality of their

school. There are six inter-connected SoQ

dimensions1:

1. Inclusive of all children

2. Effective for learning

3. Healthy, safe and protective of

children

4. Gender sensitive

5. Involved with the school community

6. Effective school management and

leadership

In order to achieve #3, which includes

strong, safe and comfortable school

buildings and a healthy environment that

includes toilets and a water system, #6,

characterized by a School Development

Plan, must be in place. Other suggested

improvements for Schools of Quality are

‘reading huts’, playground equipment,

school fences and vegetable gardens. 1. Schools of Quality Implementation Guidelines for Primary Schools,

Department of Primary and Pre-School Education, MoES 2010

27

1. Pak Tha District

No. School Description Community Contribution

1 Houay Lamphan School floor maintenance; curtain for sunshine protection Labour and sand

2 Had Donekeo School floor and window repairing Labour and sand

3 Houay Pha School floor and window repairing Labour

4 Mokkachok 3 toilets construction Labour, sand, wood

5 Pha Khoy 3 toilets construction Labour, sand, wood

2. Meung District

No. School Description Community

Contribution

1 Houay san

School painting and window repairing

Labour

2 Thamphabath

3 Phoung Lor

4 Houay Namkha

5 Torlae

6 Longphabath School toilet and window maintenance

3. Pha Oudom District

No. School Description Community Contribution

1 Ban Deua 2 latrines, 1 teacher office and 2 classrooms construction with

classroom furniture supplies

Labour, sand, wood

2 Ban Thin 2 latrines, 1 teacher office and 2 classrooms construction with

classroom furniture supplies

Labour, sand, wood

3 Ban Phouviengxay 1 teacher office and 2 classrooms construction with classroom furniture supplies

Labour, sand, wood

4 Phonekeo 2 latrines, 1 teacher office and 2 classrooms construction with classroom furniture supplies

Labour, sand, wood

5 Mokso School roof maintenance and changing new roof Labour

6 Ban Mai 2 latrines and classroom floor maintenance Labour, sand, wood

7 Houay sang Mending school tap water and water supply system Labour

Conclusion

During the evaluation process, it was obvious that schools in the target areas are still a long way from

achieving SoQ accreditation. In addition to the need to improve the quality of teaching, many schools are

in disrepair and still lack basic facilities. Plan‟s school improvement grant initiative offers a cost-effective,

participatory, capacity building and empowering option that directly benefits children. In addition, by

providing supplementary training and support and practical experience, this scheme has helped to lay a

solid foundation for the effective and efficient management of the SBGs in the future.

28

APPENDIX C:

TOOLS

See attached file.

29

APPENDIX D DETAILED LIST OF INFORMANTS

Date Participants/ Activity Number of Participants

Location Female Male Total

Aug. 13

Deputy Director General, Pre-primary and Primary Education, MOES - Interview

1 1 Vientiane

Aug. 14

Country Director, Plan International - Interview 1 1 Vientiane

Aug. 15

Pounglad School:

Principal - Interview 1 1 Pha Oudom

VEDC – Group Interview 2 1 3 Pha Oudom

Parents - Group Interview 9 1 10 Pha Oudom

Children – Group Activity 10 1 11 Pha Oudom

Aug. 16

Phangthong School:

Principal - Interview 1 1 Pha Oudom

VEDC - Group Interview 1 6 7 Pha Oudom

Parents - Group Interview 1 2 3 Pha Oudom

Children – Group Activity 7 5 12 Pha Oudom

Hat Ly School:

Principal - Interview 1 1 Pha Oudom

VEDC - Group Interview 1 5 6 Pha Oudom

Parents - Group Interview 1 1 2 Pha Oudom

Children – Group Activity 6 6 12 Pha Oudom

Plan District Finance and Admin. Officer - Interview 1 1 Pha Oudom

Aug. 17

Mokkakan School

Principal - Interview 1 1 Pha Oudom

VEDC - FGD 2 2 Pha Oudom

Parents - FGD 4 4 Pha Oudom

Children – Group Activity 4 7 11 Pha Oudom

Houay Xang School

Principal - Interview 1 1 Pha Oudom

Teachers - Interview 2 2 Pha Oudom

VEDC - Group Interview 5 1 6 Pha Oudom

Parents - Group Interview 3 2 5 Pha Oudom

Children – Group Activity 4 8 12 Pha Oudom

DESB Officer - Interview 1 1 Pha Oudom

Aug. 19

Coordinator, DESB Pak Tha - Interview 1 1 Pak Tha

Children‟s Club Members - Interview 1 1 2 Pak Tha

Children‟s Club Advisor - Interview 1 1 Pak Tha

Pak Tha School:

Principal - Interview 1 1 Pak Tha

Teachers - Interview 1 1 Pak Tha

VEDC - Group Interview 1 2 3 Pak Tha

Parents - Group Interview 5 5 Pak Tha

Children – Group Activity 4 5 9 Pak Tha

Aug.

20

Houay Lamphen School

Principal - Interview 1 1 Pak Tha

VEDC - Group Interview 2 2 Pak Tha

Parents - Group Interview 4 1 5 Pak Tha

Children – Group Activity 7 3 10 Pak Tha

Houay Phalam School

Principal - Interview 1 1 Pak Tha

Teachers - Interview 2 2 Pak Tha

VEDC - Group Interview 2 1 3 Pak Tha

Parents - Group Interview 5 1 6 Pak Tha

Children – Group Activity 5 3 8 Pak Tha

Child Rights and Child Protection Assistant, Plan 1 1 Pak Tha

Finance and Administration Officer, Plan 1 1 Pak Tha

Aug. 21

Plan District Education Coordinators (Pha Oudom and Pak Tha) - Interview

2 2 Pak Tha

30

Date Participants/ Activity Number of Participants

Location Female Male Total

Plan Head of Finance - Interview 1 1 Vientiane

Director, RIES 1 1 Vientiane

Aug. 22

Radio Staff - Interview 2 2 Houay Xai

BEP Coordinator - Interview 1 1 Meung

Director of DESB Meung = Interview 1 1 Meung

Director, Inclusive Education Centre - Interview 1 1 Vientiane

Aug. 23

Phoung Hin School

Principal - Interview 1 1 Meung

Teachers - Interview 2 2 Meung

VEDC - Group Interview 1 6 7 Meung

Parents - Group Interview 5 6 11 Meung

Children – Group Activity 6 6 12 Meung

Houay That School

Teachers - Interview 1 1 2 Meung

VEDC - Group Interview 2 5 7 Meung

Parents - Group Interview 4 5 9 Meung

Children – Group Activity 4 9 13 Meung

Director, Save the Children International - Interview 1 1 Vientiane

Director, ChildFund - Interview Vientiane

Aug. 24

Finance and Administration Officer, Plan 1 1 Meung

District Team Leader, Plan - Interview 1 1 Meung

Aug.

25

MoES Evaluation Team Members - Interview 1 1 2 Houay Xai

MoFA Evaluation Team Member - Interview 1 1 Houay Xai

Aug.

26

PESS staff - Interview 2 2 Houay Xai

BEP Provincial Coordinator - Interview 1 1 Houay Xai

Aug. 27

BEP and ECCD Manager - Interview 1 1 Vientiane

Aug. 28

BEP and ECCD Assistant - Interview 1 1 Vientiane

Director, Room to Read - Interview 1 1 Vientiane

TOTAL 127 138 265

31

APPENDIX E EVALUATION FIELDWORK SCHEDULE: AUGUST 11 – 30, 2013

Sun 11th Arrive in Vientiane 21:30

Mon 12th Preparation (complete translation of question guides, etc)

Tues 13th Final Preparation Interview Deputy Director General, Pre-primary and Primary Education, MOES)

Wed 14th Interview Country Director, Plan Interview Child Protection and Gender Assistant Travel to Pha Oudom District, Houay Xai Province

Thurs 15th

Courtesy Visit to DESB Pha Oudom Preparation Workshop with Evaluation Team Visit Phounglad School

Data Consolidation

Fri 16th Visit Phangthong and Hat Ly Schools Data Consolidation

Interview Plan Finance and Admin. Officer

Sat 17th Visit Mokkakan and Houay Xang Schools Data Consolidation

Interview DESB staff

Sun 18th Travel to Pak Tha District (One consultant returns to Vientiane.)

Mon 19th

Courtesy Visit DESB Pak Tha Visit Pak Tha School Data Consolidation

Interview Children‟s Club Members and Staff Advisor Interview Pak Tha DESB BEP Coordinator

Tues 20th Visit Houay Lamphen and Houay Phalam Schools Interview Plan Child Rights/Child Protection Assistant

Interview Plan Finance and Admin. Officer

Wed 21st

Interview BEP Coordinators from Pha Oudom and Pak Tha Districts Data Consolidation (2 schools)

Interview Plan Country Office Finance Officer Interview Director RIES Travel to Houay Xai pm

Thurs 22nd

Interview Radio Programme Team Travel to Meung District Courtesy Visit DESB Meung

Interview Meung BEP Coordinator Interview Director Inclusive Education Centre

Fri 23rd

Courtesy Visit to Meung District Governor

Visit Phoung Hin and Houay That Schools Interview Director SCI Interview Director Child Fund

Sat 24th

Data Consolidation 2 schools Interview Plan Finance and Admin. Officer Interview Plan District Team Leader

Travel to Houay Xai

Sun 25th Interview MOES and MOFA Team Members

Mon 26th

Interview PESS Staff

Interview Plan Provincial BEP Coordinator Travel to Vientiane

Tues 27th Data Consolidation and Preparation for Presentation of Findings Interview ECCD and BEP Manger

Wed 28th

Data Consolidation and Preparation for Presentation of Findings

Interview BEP and ECCD Assistant Interview Director Room to Read

Thurs 29th Presentation of Findings to Plan Staff

Fri 30th Presentation of Findings to MoES Staff Travel to Bangkok

32

APPENDIX F

LOGICAL FRAMEWORK ANALYSIS

See attached file

33

APPENDIX G

FINANCIAL REPORT

See attached file

34

APPENDIX H:

TERMS OF REFERENCE

European Union

Plan Laos

Ban Saphanthong Tai

Sisattanak District

Vientiane

Lao PDR

Tel: + 856 (0) 21 353409/11

Fax: +856 (0) 21 313 512

Plan Laos is part of Plan

International.

www.plan-international.org

Term of Reference for Final Evaluation

Strengthening Local Governance and Participation for the Realization of

Children’s Right to Education

Funded by the European Union

I. Introduction

Plan, one of the world’s largest children’s INGOs, works with children and poor communities in

48 developing countries, mainly in the fields of education, health, water, sanitation, and

promotion of children’s rights. Plan has no religious or political aims or affiliations29.

Plan Laos, a part of Plan International, started its operation from 2007. There are two major

education sector programs – Early Childhood Education Development and Basic Education and

Child Rights and Protection. These are implemented under two MOUs with the Ministry of

Education. Plan is a member of the Ministry of Education and major donor “Sector Working

Group”.

Plan’s Basic Education and Child Rights and Protection Program is Plan Laos’ largest

program at present. It is very wide-ranging, from teacher training to supply of stationery to all

children and educational materials to all teachers to working at a national policy level. It is

now supported by a grant from the European Commission together with other Plan’s funding

sources.

With support from the European Union, Plan is implementing the “Strengthening Local

Governance and Participation for the Realization of Children’s Right to Education Project” in

Bokeo Province from January 2010 to December 2012. This is part of Plan’s longer term Basic

Education Program that began in July 2009. The Project works in poor ethnic communities

29 Visit www.plan-international.org for more information.

35

where children have low access to quality education and have high repetition and dropout

rates, especially in the first three grades. This Project aims to ensure children’s rights to basic

education to enable them to develop basic knowledge, skills, and behaviours, and to help

them to realize their fullest potential.

Following is summary the key facts of the project.

Total duration of

the Action

42 months (from January 2010 to June 2013)

Objectives of the

Action

The overall objective: To support the development of primary education services

to reach and respond to the specific needs of marginalized groups and remote

communities in realizing their rights to education in Lao PDR.

The specific objectives:

1) to strengthen management and governance of primary education by local

authorities and village committees in Pha Oudom, Meung and Pak Tha Districts of

Bokeo Province,

2) to enhance access, retention and completion of five years of primary education

in the three Districts,

3) to improve the quality of primary education in the three Districts,

4) to strengthen schools as healthy, non-violent and inclusive learning

environments in the three Districts and

5) to enrich national level development of the ESDF and educational policies by

lessons from local level experience.

Partner(s) Provincial Education Service, Bokeo Province

Target group(s) This Program will gradually cover all 150 primary schools and communities in the

three districts. The main target groups are head-teachers, teachers, community

leaders, care givers, and children.

Final beneficiaries Some 12,000 children currently enrolled plus about 2,000 who could potentially

attend. Special attention is paid to children from vulnerable groups, especially

girls, children from different ethnic backgrounds and children with disabilities.

Expected results Result 1 : Improved management and governance of primary education in the

Provincial Education Service (PES), and the three District Education Bureaus (DEBs),

36

village committees and all primary schools.

Result 2: Increased Net Primary School Enrolment and Completion rates with equal

representation of girls and boys.

Result 3: Strengthened quality and relevance of primary education.

Result 4: Schools and communities are more positive, protective, and healthy

environments for all children.

Result 5: Policy discussions amongst key Lao decision-makers and other

development actors in the education sector are enriched by lessons from the local

level experience.

Main activities Result 1: Train Head Teachers; Support DEBs to provide post-training follow-up

support at the school level and to strengthen Education Management Information

System (EMIS) processes; Train Village Authorities.

Result 2: Children’s Rights Village Campaigns;

Result 3: Train teacher on professional skills; Provide supplementary reading and

other learning materials; Local curriculum development pilot; School improvement

lead by Village Authorities;

Result 4: Pilot in-service training on child rights, child protection and “positive

discipline”; School-based extra-curricular activities; School-based sanitation and

hygiene promotion; Local Radio for child rights promotion;

Result 5: Participate in the Education INGO Network and Education Sector Working

Group; Research and dissemination; “Learn Without Fear” campaign; Annual

Review and Planning Workshops.

This project is nearing completion; therefore Plan Lao wants to evaluate the project

performance in relation to the Objectives and expected results.

II. Objectives of Final Evaluation

The final evaluation offers the opportunity to assess the implementation of the project

technically as well as to identify weaknesses and strengths in current implementation strategies

The main objectives of the final evaluation are as follows:

Assess the project in relation to the OEDC DAC evaluation criteria of:

37

Relevance and quality of the project design, effectiveness of project implementation, in

relation to the objectives and expected results, efficiency of implementation, Impact or

the potential for impact, and sustainability

Specifically assess the project’s impact on gender equality in the education sector in

Bokeo, as well as other aspects of inclusion addressed or not addressed in the project

such as ethnicity, poverty and remoteness

Specifically assess the relationship between Plan and the government education services

at central, provincial and district level, with a particular focus on strengthened

capacities, sustainability and accountability

Identify the project’s key challenges during implementation, and lessons learnt;

Describe two cases of best practices or approaches which can be used for the benefit of

future interventions in the education sector by Plan and others in Bokeo and other parts

of Lao or internationally;

Generate concrete conclusions and recommendations that can feed in to planning and

design of the next program phase

III. Target Readers

The evaluation results will be primary used by parties involved in the action: (a) Plan staff in

both national offices and country office, (b) government partners at all levels (MOES, PESS,

DESB, and school authorities), and (c) delegation of the EU in Laos.

IV. Methodology

The consultants will be expected to review project documentation, interview project

management and field staff, co-operating government counterparts (PESS, DESB), and school

teachers and Village Education Development Committee (VEDC) in a sample of the 143

primary schools (latest stats- 2012) in the three districts (Pak Tha, Pha Oudom, and Meung) of

Bokeo province. They would obtain the views of project beneficiaries in a participative

manner. The project logical framework should provide the basis of analysis.

The extent to which the cross-cutting issues of gender, ethnicity, good governance, and

environment have been incorporated into project implementation should be examined.

38

The following steps are proposed for conducting the evaluation:

Preparatory planning meetings

Documents review

Data collection/Field exercise

Debriefing after first draft of writing

Conduct a workshop on finding of the review

Report writing and submission

V. Expected Outputs

The following outputs will be required for the Final Evaluation:

1) An acceptable Final Evaluation.

The evaluation report will be prepared in English. A draft version of the report will be

sent to Plan Laos by e-mail at least 3 days before presenting the final evaluation results

at the one-day Workshop on the fourth week of the mission. The final version of the

report is to be handed over to Plan Laos within two weeks after the Workshop. It

should be provided in both hard copy and soft copy (Microsoft Word file). The report

shall not exceed 25 pages (excluding appendices), which includes:

Executive summary

Description of the project’s achievements at the time of review

- coverage (area and beneficiaries)

- details of the objectives and results achieved (as per log frame)

Project evaluation

- relevance and quality of the project design

- effectiveness

- efficiency

- impact

- sustainability

- gender equality

- government relationships- strengthened capacities, sustainability and

accountability

Key challenges, Lessons learned and recommendations

Case studies of best practice

39

Appendices:

- TOR of the evaluation mission

- Project budget (planned and actual)

- Logical framework and indicators at the time of the Final Evaluation

- Methodology of the evaluation

1) One-day workshop including a presentation of the study, with main focus on the finding

and the recommendations in Vientiane;

VI. Timeframe

An estimated timeframe is 30 days, including field visit in Bokeo province. The Final Evaluation

shall start May 2013 and to be completed in the middle of June 2013.

Tasks Days

Preparation at Plan Laos country

office

3 days

Field visit in Bokeo 10 days

Draft report 10 days

Prepare a presentation for the

Workshop-at the Ministry

1 day

Organize WS 1 day

Finalize the report 5 days

Total: 30 days

40

Inputs

Consultants:

An independent consultant is required. The consultant must have the following qualifications:

1. At least a graduate degree or equivalent professional qualification in education, or

social science development areas;

2. At least five (5) years experience in project evaluation, with a preference for evaluation

of education projects.

3. Experience working in the Lao education sector or Lao community development;

4. Knowledge and experience of EC projects is an advantage;

5. Excellent English writing skills and verbal communication;

6. Demonstrated experience in evaluating gender equality and inclusion in international

development projects

All consults must agree to follow the Plan child protection policy, which will be provided when

the Consultant has been selected.

Input from Plan:

Plan Laos shall provide documents and information related to the project, meeting

arrangements, working space and internet access, and other necessary supports request by the

consultants related to this project.

VII. Evaluation team:

The consultant will work with an evaluation team but will be responsible for all outputs. The

team will consist of Plan staff and the government partners.

MoES; Bokeo PES; Pha Oudom, Paktha and Muang DESB and MoFA

41

VIII. Submission of Proposal

The Consultant is expected to submit a detailed proposal with the following components:

a) Technical proposal to include:

A one page Consultant’s understanding of the TOR;

Two pages of the proposed methodology, activities and expected outcomes;

A brief activities schedule/work plan with time frame;

A profile of the individual or consulting firm including the full names, physical

addresses, telephone numbers, and contact person or the firm/company (if any); for a

firm/company the date of registration, registration number, copy of registration

certificate and VAT certificate, and names of directors/proprietors are also required;

Copy of CVs of all the consultants who will undertake the evaluation.

b) Financial proposal detailing

Daily consultant rates for all consultants included in the technical proposal

Estimated Travel costs for consultants based outside of Lao PDR (in country costs not

required in the proposal)

Validity period of quotation;

Expected payment plan and method.