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Ngos) on Primary Education Policy in Laos The Influence of Non-Governmental Organisations (NGOs) on Primary Education Policy in Laos By Oulath Saengouthay A thesis submitted to Victoria University of Wellington in partial fulfilment of the requirements for the degree of Masters in Development Studies School of Geography, Environment and Earth Sciences Victoria University of Wellington 2015 Abstract Laos is a poor and aid-dependent country in South-East Asia. Its primary education development has depended heavily on external assistance, which has caused some scholars to argue that education policy is shaped by this influence. While major donors have played a significant role in driving Lao primary education development, NGOs are increasingly engaging in the process since Laos has adopted global commitments, particularly the Education for All goals of the Millennium Development Goals. While the Government of Laos values NGOs’ contributions as equally to those of major donors, it commonly views NGOs as ‘service providers’ and major donors as ‘policy counterparts’. The government is wary of NGOs’ mission and this has also shaped NGOs’ space in the policy arena. This thesis has examined the extent to which NGOs have influenced Lao primary education policy since the adoption of the Vientiane Declaration on Aid Effectiveness in 2006. This research draws on a social constructivist epistemology, and data collection employed qualitative methods including semi-structured interviews, analysis of relevant policy documents, and participant observation. The interviews involved 24 participants representing government agencies, NGOs, donor organisations and education specialists. The main focus of interviews was to explore the degree of NGOs’ influence on primary education policy, the mechanisms and strategies that NGOs use to exercise their influence, and how such mechanisms and strategies have impacted on their role at policy level. The findings indicate that NGOs have limited influence on Lao primary education policy. Although they have some influence through participating in policy dialogues, they have minimal influence on the outcomes of policy development. The fact that NGOs have limited influence on policy outcomes is attributed partly to their limited financial capacity and partly the limits of their specialised expertise to support and convince the government for policy change. The deciding factor, nevertheless, is the government’s reluctance to integrate NGOs’ advice and recommendations into Lao primary education policy due to its wariness of NGOs’ influence, particularly on politically sensitive issues. i Acknowledgements This thesis is a product of cooperation from a number of people without whom it would not have been possible. It is not possible to mention all the names here. First of all, I would like to express my heartfelt gratitude to my supervisor Dr Polly Stupples for her exceptional guidance and support throughout the process of this thesis. Her encouragement and leadership inspired me to work attentively toward the completion of this thesis. I would also like to thank Professor John Overton, my interim supervisor and Director of Development Studies Programme at Victoria University of Wellington (VUW), who provided me with guidance at the beginning of this research prior to Dr Stupples’s tenure. His excellent advice made my fieldwork possible. Big thanks also go to Anna Rogers and Dr Rachel Tallon and the rest of the team at VUW for helping me refine my ideas. My gratitude also goes to my generous sponsor, the New Zealand Aid Programme, for funding my study in New Zealand as well as my research in Laos. Both my study and this thesis would not have been possible without that support. I am profoundly grateful to my research participants from the Lao government agencies, NGOs, donor organisations, and education specialists, for sharing with me their experiences, knowledge and insights. Without their active participation, this thesis would not have been completed. I am much obliged to my family, friends and colleagues both in New Zealand and Laos for their continued support during my study in New Zealand and my fieldwork in Laos. Special thanks go to my parents whose faith in me has never changed. I also owe my brother thanks for shouldering all family responsibilities during the time I was away for my study in New Zealand. ii Table of Contents Abstract i Acknowledgements .............................................................................................................. ii Table of Contents .................................................................................................................. iii List of Figures ........................................................................................................................ vi List of Tables .......................................................................................................................... vi List of Abbreviations .......................................................................................................... vii Chapter 1 : Introduction ..................................................................................................... 1 1.1 Introduction .............................................................................................................................. 1 1.2 Key Issues Framing This Research ................................................................................... 3 1.3 Justifying the Research Location ....................................................................................... 5 1.4 Aim and Objective of the Research ................................................................................... 6 1.5 Research Questions ................................................................................................................ 7 1.6 Significance of the Research ............................................................................................... 7 1.7 Thesis Outline ........................................................................................................................... 8 1.8 Summary .................................................................................................................................... 9 Chapter 2 : Literature Review ......................................................................................... 10 2.1 Introduction ............................................................................................................................ 10 2.2 Understanding the Meaning, Evolution and Multifaceted Roles of NGOs ....... 10 2.2.1 Definition of NGOs ........................................................................................................ 10 2.2.2 Categories and Roles of NGOs .................................................................................. 11 2.2.3 NGOs’ Relationships with other Development Partners ............................... 13 2.2.4 NGOs’ Influence on Government Policy ............................................................... 15 2.2.5 External Influence on Lao Education Policy ....................................................... 16 2.3 Key Policy Documents Reflecting NGOs’ Role at Policy Level .............................. 17 2.3.1 Paris Declaration on Aid Effectiveness ................................................................. 17 2.3.2 Vientiane Declaration on Aid Effectiveness ........................................................ 18 2.3.3 The Round Table Process .......................................................................................... 20 2.3.4 Dakar Framework for Action ................................................................................... 21 2.3.5 Education Strategic Vision 2000– 2020 ............................................................... 21 2.3.6 Education for All National Plan for Action 2003 – 2015 ............................... 22 2.3.7 National Education System Reform Strategy 2006 – 2015 .......................... 24 2.3.8 Education Sector Development Framework 2009-2015 .............................. 25 iii 2.3.9 Education Sector Development Plan 2011 -2015 ............................................ 26 2.4 Summary .................................................................................................................................. 27 Chapter 3 : Methodology ................................................................................................... 29 3.1 Introduction ............................................................................................................................ 29 3.2 Research Epistemology ....................................................................................................... 29 3.3 Researcher’s Positionality ................................................................................................. 30 3.4 The Research Design Process ........................................................................................... 31 3.5 Sampling and Research Participant Selection ............................................................ 31 3.6 Research Methods ................................................................................................................. 33 3.6.1 Semi-Structured Interviews ..................................................................................... 33 3.6.2 Document Review ......................................................................................................... 36 3.6.3 Participant Observation
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