Report No. 67201-CM Public Disclosure Authorized Cameroon GOVERNANCE AND MANAGEMENT IN THE EDUCATION SECTOR Public Disclosure Authorized Public Disclosure Authorized March 2012 Africa Region Public Disclosure Authorized ACKNOWLEDGMENTS This report is the result of a collaborative effort between the Government of Cameroon, the Cameroon Country Management Unit and the Education Unit, Africa Region (AFTED). The Ministry of Basic Education and the Ministry of Secondary Education fully supported its development, during field visits and dissemination workshops. The insights and contribution of Paul Emog Valentin (Director, Human Resources, Ministry of Basic Education) are particularly acknowledged. The World Bank team comprised Michel Welmond (Lead Education Specialist), Daniel Murphy (Senior Country Officer), Cia Sjetnan (Senior Country Officer), Fadila Caillaud (Education Economist), Abel Paul Basile Bove (Governance Specialist), Victoire Ngounoue (Consultant), and Natalie Tchoumba Bitnga (Program Assistant). The study was designed and conducted by Prema Clarke (Consultant) and Vincent Perrot (Consultant). Norosoa Andrianaivo (Program Assistant) provided document processing support. Valuable advice and comments were also provided by the report’s peer reviewers: Fabien Eboussi Boulaga (Professor, University of Cameroon and Governance Advisor), Verena Fritz (Governance Specialist), Cornelia Jesse (Operations Officer), Sahr Kpundeh (Senior Public Sector Specialist, Africa Region Operational Quality and Knowledge Services), Elizabeth Ninan (Human Development Specialist), Emiliana Vegas (Senior Education Economist) and Tony Verheijen (Senior Public Sector Management Specialist). Finally we gratefully acknowledge the Governance Partnership Facility for providing financial support for the preparation of this report. TABLE OF CONTENTS ACKNOWLEDGMENTS .............................................................................................................. ii TABLE OF CONTENTS .............................................................................................................. iii ACRONYMS AND ABBREVIATIONS ....................................................................................... v EXECUTIVE SUMMARY ........................................................................................................... vi Introduction ................................................................................................................................ vi Key Findings .............................................................................................................................. vi Potential Areas for Governance Reform .................................................................................. viii Chapter 1 SETTING THE SCENE ..................................................................................... 10 1.1 Country Background ........................................................................................................... 10 1.2 The Education Sector in Cameroon ................................................................................. 11 1.3 Objectives and Analytical Framework ................................................................................ 14 1.4 Study Methodology .......................................................................................................... 17 Chapter 2 GOVERNANCE OF PUBLIC EXPENDITURE IN EDUCATION .................. 19 2.1 Introduction ...................................................................................................................... 19 2.2.1 Budget Allocations ................................................................................................. 19 2.2.2 Central Financial Transfers to Regional Levels of Government ..................... 20 2.2.3 Central Financial Transfers for Regional Administration ................................. 22 2.3 Central Financial Support to Schools ............................................................................... 22 2.3.1 Infrastructure Development .................................................................................. 23 2.3.2 Minimum Package .................................................................................................. 24 2.3.3 Financial Support for Primary and Secondary Schools ................................... 25 2.4 Public Procurement and Expenditure in the Education Sector ........................................ 26 2.4.1 Expenditure below CFA 5 Million ......................................................................... 26 2.4.2 Expenditure above CFA 5 Million ........................................................................ 27 2.4.3 Textbook Procurement .......................................................................................... 28 2.5 Central Monitoring of Expenditure .................................................................................. 29 2.6 Conclusions ...................................................................................................................... 31 Chapter 3 GOVERNANCE OF SYSTEM FUNCTIONING IN EDUCATION ................. 32 3.1 Teachers ........................................................................................................................... 32 3.1.1 Teacher Recruitment ............................................................................................. 32 3.1.2 Registration of Recruited Teachers ..................................................................... 33 3.1.3 Teacher Deployment and Transfers .................................................................... 34 3.1.4 Teacher Work Force and Salary Payments ....................................................... 35 3.2 Schools ............................................................................................................................. 38 3.2.1 Teacher Performance ............................................................................................ 39 3.2.2 Sanctions and Incentives ...................................................................................... 40 3.2.3 Administrative Performance ................................................................................. 41 3.2.4 School Performance .............................................................................................. 43 3.2.5 Community Participation ....................................................................................... 44 3.3 Role of Extra-government Entities in Governance .......................................................... 46 3.4 Conclusions ...................................................................................................................... 48 Chapter 4 MAXIMIZING GOVERNANCE IN EDUCATION ........................................... 49 4.1 The impact of governance on education outcomes .......................................................... 49 4.2 Improving education outcomes through better governance: a roadmap .......................... 51 ANNEXES ..................................................................................................................................... 56 Annexe I: organisation du système et statistiques .......................................................................... 56 Annexe II : les trois régions ............................................................................................................ 58 Annexe III: gestion des infrastructures ........................................................................................... 60 Annexe IV: exemple de « carton » du Ministère des Finances ....................................................... 62 Annexe V: gestion des données dans la délégation départementale du Wouri ............................... 63 Annexe VI: Organigramme des services déconcentrés .................................................................. 67 Annexe VII: exemple de rapport confidentiel sur un enseignant ................................................... 69 Annexe VIII : fiche de suivi séquentiel des enseignants (MINEDUB) .......................................... 73 Annexe IX : rapport d’inspection (MINEDUB) ............................................................................. 74 Annexe X : rapport pour les inspecteurs (MINEDUB) .................................................................. 79 Annexe XI : restitution de l’étude ................................................................................................... 90 Annexe XII : proposition de plan d’action faisant suite aux ateliers .............................................. 92 BIBLIOGRAPHY ......................................................................................................................... 94 CURRENCY EQUIVALENTS (Exchange Rate Effective as of July 31, 2009) Currency Unit = CFAF US$1.00 = CFAF 464.13 FISCAL YEAR January 1 – December 31 ACRONYMS AND ABBREVIATIONS AFD Agence Française du Développement (French Development Agency) BAC Baccalauréat (General certificate of secondary studies, second cycle) BEPC Brevet d’études de premier cycle (General certificate of secondary studies, first cycle) CAP Certificate of Professional Aptitude CPDM Cameroon People’s Democratic Movement CEP Certificat d’études primaires (Primary studies certificate) CL Class level CPI Corruption Perception Index ECAM Enquête Camerounaise auprès des ménages (Cameroon Household Survey) EMIS Educational Monitoring Information System ESSP Education Sector