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G2G in Education Case Study: Peru

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G2G in Education Case Study: Peru USAID Office of Education G2G in Education Case Study: Peru Submitted: June 2018 This publication was produced for review by the United States Agency for International Development (USAID) It was prepared by Training Resources Group, Inc. (TRG). Table of Contents Abbreviations and Acronyms ....................................................................................................... ii I. Introduction ............................................................................................................................ 1 Background – The Choice of USAID/Peru as a Case Study ............................................................................... 1 A Brief Look at Major Observations ........................................................................................................................ 2 Structure of the Report ............................................................................................................................................... 3 II. Peru Country Context........................................................................................................... 5 III. USAID Support to Peru .................................................................................................... 7 USAID’s Transition to the Use of Host Country Systems ................................................................................. 7 Peru’s Education Sector Context .............................................................................................................................. 8 Learning Achievements and Key Constraints......................................................................................................... 9 USAID Support for Education in Peru ................................................................................................................... 10 IV. USAID G2G Support to the Peruvian Education Sector ............................................. 13 G2G Development ..................................................................................................................................................... 13 G2G Public Financial Management Risk Assessment Framework ................................................................... 16 G2G Programmatic Management Considerations .............................................................................................. 17 G2G Implementation.................................................................................................................................................. 20 G2G Close-Out Phase ............................................................................................................................................... 26 V. Summary – G2G Lessons Learned and Good Practices................................................... 28 G2G Pre-Design and Design Phase – Good Practices ....................................................................................... 28 G2G Pre-Design and Design Phase – Lessons Learned ..................................................................................... 28 G2G Implementation Phase – Good Practices .................................................................................................... 30 G2G Implementation Phase – Lessons Learned .................................................................................................. 31 G2G Close-Out Phase – Lessons Learned ........................................................................................................... 32 - i - Abbreviations and Acronyms AD Alternative Development AL Amazonia Lee CDCS Country Development Cooperation Strategy CEPCO Centro de Estudios y Promoción Comunal del Oriente CETT-Andino Andean Center for Excellence in Teacher Training DEVIDA Comisión Nacional para el Desarrollo y Vida sin Drogas/ National Commission for Development and Life without Drugs DIFODS Dirección de Formación de Docentes en Servicio/ The National Office for Continuous Training of Teachers In Service DO Development Objective DRE Dirección Regional de Educación/Regional Offices of Education DRG Democracy, Human Rights, and Governance E3/ED Bureau for Economic Growth, Education, and Environment’s Education Office EGR Early Grade Reading FMO Financial Management Office FSN Foreign Service National FY Fiscal Year G2G Government-to-Government GIS Governance and Institutional Strengthening GNI Gross National Income GOP Government of Peru GORESAM Regional Government of San Martin GOREU Regional Government of Ucayali - ii - GRADE Grupo de Análisis para el Desarrollo HEO Health and Education Office IL Implementation Letter LAC Latin America and the Caribbean LANN Leading Children’s Learning LOE Level of Effort M&E Monitoring and Evaluation MINAM Ministerio del Ambiente/Ministry of the Environment MINEDU Ministerio de Educación/Ministry of Education NGO Non-Governmental Organization OECD Organisation for Economic Co-operation and Development PAD Project Appraisal Document PEEL Proyecto Enseñar es Liderar/Project Teaching is Leading PELA Programa Estratégico de Logros de Aprendizaje/Strategic Program for Learning Results PFMRAF Public Financial Management Risk Assessment Framework PISA Programme for International Student Assessment PMP Performance Management Plan PRODES Pro-Decentralization TA Technical Assistance UGEL Unidad de Gestión Educativa Local/Local Offices for Educational Management UPCH Universidad Peruana Cayetano Heredia USAID United States Agency for International Development USG United States Government - iii - I. Introduction The purpose of this case study is to capture ground-level experiences in the operational steps of designing, implementing, and monitoring government-to-government (G2G)-based education programming in Peru. It forms part of the G2G Education Toolkit created in 2013 by the United States Agency for International Development’s (USAID’s) Bureau for Economic Growth, Education, and Environment’s Education Office (E3/ED). E3/ED developed the Toolkit in response to the need for tools and training materials to assist education staff and teams; it includes a literature review; an analysis of lessons learned and best practices; an analytic framework and roadmap; operational tools; and case studies. Additionally, sample G2G operational documents from missions currently undertaking G2G activities are available to guide field staff. E3/ED continues to update the Toolkit to reflect the most recent experiences with its activities; this case study is an addition to that body of work. Background – The Choice of USAID/Peru as a Case Study In the 2000s the United States joined other donors in making commitments to support greater host country ownership of development assistance. In USAID this led to the increased use of government-to- government funding modalities across many missions. Beginning in 2010, the USAID Forward Initiative’s Implementation and Procurement Reform1 set a target of increasing funds provided directly through local systems (i.e., government, civil society and private sector), channeling 30 percent of total mission program assistance directly through local entities by FY20152. Education was one of the leading sectors under USAID Forward in designing G2G activities to support this objective. While G2G mechanisms as currently configured are relatively new to USAID, the United States Government (USG) has a long history of development work with the Government of Peru (GOP). Cooperation in the education sector began with scholarship programs for Peruvian teachers that were part of U.S. President Harry S. Truman’s Point Four Program launched in 1949 (these programs were active until 1962. USAID, established in 1961, also has a long history in Peru). The mission recently celebrated 50 years of collaboration and support in country. Supported programs include: alternative development, environment, health, democracy and governance, education, and economic growth. USAID/Peru’s experiences, coupled with an emphasis placed on local capacity development in USAID/Peru’s Country Development Cooperation Strategy 2012-2016, made it an excellent choice as a 1 The USAID Forward Initiative ran from 2010 – 2016. 2 Congressional Research Service, U.S. Agency for International Development (USAID): Background, Operations, and Issues, July 21, 2015, pg. 33. Although the 30 percent quantitative target is now viewed as “aspirational,” USAID continues to monitor the Agency’s movement toward direct financing of local systems. - 1 - case study for use of G2G mechanisms; in this case, it focused on education. In addition, USAID/Peru had worked with G2G funding across all of its targeted sectors. While the case study would not examine the non-education G2Gs in detail, it was thought that interviewing personnel who had worked in some of these other sectors could provide opportunities for G2G lessons learned and good practices not limited only to the education sector. The selection of USAID/Peru as a case study for G2G education funding provided a unique opportunity for the G2G Education Toolkit. Previous case studies had taken place in countries where education G2Gs were in the process of implementation. USAID/Peru’s two education G2Gs were approaching their end dates, making this the first time a case study would be able to examine the full evolution of the education G2G experience, including conceptualization, planning, design, implementation, monitoring & evaluation, and close-out. Because USAID/Peru’s education G2Gs were nearing an end,
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