World Bank Document

214882

Public Expenditure Review of the

Education Sector in the Democratic

Republic of Congo

An Efficiency, Effectiveness, and Equity Analysis

Public Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure Authorized

ii

Report No. ACS14542

Democratic Republic of Congo:

Education Sector Public Expenditure Review

An Efficiency, Effectiveness, and Equity Analysis

October, 2015

i

Vice President: Makhtar Diop

Country Director: Ahmadou Moustapha Ndiaye

Senior Director: Claudia Maria Costin

Director: Amit Dar

Practice Manager: Peter Nicolas Materu

Task Team Leader: Kebede Feda

ii

CURRENCY EQUIVALENTS

(Official exchange rate (LCU per US$, period average, 2013)

Currency Unit = Congolese Franc

US$1 = CDF 920

FISCAL YEAR

January 1 December 31

ABBREVIATIONS AND ACRONYMS

ASSONEPA Association Nationale des Ecoles Privées Agréées

BCECO Bureau Central de la Coordination

BIA Benefit Incidence Analysis

BMD Bachelors-Masters-Doctorate

CODR Coordination des Districts

CPPSB Comité Permanent de Préparation et de Suivi Budgétaire

DEA Data Envelopment Analysis

DEP Direction des Études et Planification

DMU Decision Making Unit

DPSB Direction de la Préparation et du Suivi du Budget

DRC Democratic Republic of Congo

DSCPR Document de la Stratégie de Croissance et de Réduction de la Pauvreté

DTE Decentralized Territorial Entity

EAM Écoles des Arts et Métiers

ECD Early Child Development

ECN École Conventionnée

ECOFIRE Commission Économique, Financière et de Reconstruction

EFA-FTI Education for All Fast Track Initiative

EG Écoles Générales

EMIS Education Management Information System

EN Écoles Normales

ENC École non Conventionnée

EP Écoles Professionnelles

EPR École Privée

EPSP Enseignement Primaire, Secondaire et Professionnel

ET Écoles Techniques

FDI Foreign Direct Investment

GDP Gross Domestic Product

GER Gross Enrollment Ratio

GPE Global Partnership for Education

GPI Gender Parity Index

iii

HBS Household Budget Survey

HCP Human Capital Projection

HDI Human Development Index

ICT Information and Communication Technology

INS Institut National de la Statistique

IRR Internal Rate of Returns

ISP Instituts Supérieur Pédagogiques

IST Instituts Supérieur Technique

MAS Ministère des Affaires Sociales

MDG Millennium Development Goals

Nouvelle Citoyenneté

MTEF Medium-Term Expenditure Framework

NER Net Enrollment Ratio

PASEC Programme d'Analyse des Systèmes Éducatifs de la CONFEMEN

PCR Primary Completion Rate

PER Public Expenditures Review

PETS Public Expenditure Tracking Survey

PIE PGAI

PROVED Province Educative

PRRIS Projet de Réhabilitation et de Reconstruction des Infrastructures Scolaires SECOPE Service de Contrôle de la Paie des Enseignants

Sous-PROVED Sous Province Educative

SSA Sub-Saharan Africa

STR Student Teacher Ratio

TVET Technical Vocational Education and Training

UGP Unité de Gestion de Projet

UNAZA Université Nationale du Zaïre

UPE Universal Primary Education

WDI World Development Indicator

iv

Acknowledgments

The Public Expenditure Review (PER) of the Education Sector in the Democratic Republic of Congo was prepared by a World Bank Group team consisting of Kebede Feda (Economist, TTL, GEDDR), Tanya Savrimootoo (Consultant, GEDDR), Élisé Wendlassida Miningou (Consultant, GEDDR), and Sabiti Kalindula (Consultant, GEDDR). During the preparation of the report, the team also benefitted from extensive comments and input from Chadi Bou Habib (Sr. Country Economist, GMFDR) for the chapter on Public Expenditure Management and Financial Accountability Review (PEMFAR), as well as on the macroeconomic section of the PER. Franck Adoho (Economist, GPVDR) provided access to household surveys and data files. The team would like to thank Peter Materu (Practice Manager, GEDDR) for his support and guidance during the study; Dung-Kim Pham (Sr. Operations Officer, GEDDR), Luc Laviolette (Program Leader, AFCC2), Kirsten Majgaard (Economist, GEDDR), Hadia Nazem Samaha (Sr. Health Specialist, GHNDR), and Yisgedullish Amde (Country Program Coordinator, AFCCD) for providing useful input during various stages of the study. The team would also like to express its thanks to Lalaina Noelinirina Rasoloharison and Pegdwende Diane Porgo in Washington D.C. and Christelle Tandundu Epuza and Patricia Komina Dele in Kinshasa, DRC, for their support during the missions and preparation of the report.

The team would particularly like to thank the education sector stakeholders in the DRC who

participated in the workshops, provided valuable qualitative information to supplement the analysis

and provided invaluable feedback on the initial draft. While it is not possible to mention the names of

each person that provided input, we would like to particularly the following individuals for their contribution: Jean-Marie Mangobe (SECOPE), Jerôme Bokwango (DEP), Gervais Songa-Munyaka and

Pa-Kore Bwalankay (Inspection Générale), Mopolo Mokute (Ministère du Plan, PGAI), Fabrice Mansila

(CAT), Abeli Jafari and Masikini Mukela (BCECO), Kelotin Muntwambuka (DPSB), Thomas Poirier (Ambassade de France), and Prof. Justin Phoba Mvika (ISC Matadi). The team is also grateful for the

partnership with UNICEF and would like to thank its representatives in Kinshasa - Elsa Duret, Nathalie

Meyer and Valentina Prosperi - for their contributions during the workshops. Many counterpart staff and focal points participated in the study and helped in the data collection

Université Protestante au Congo (UPC), Institut Supérieur de Commerce (ISC) Matadi, l'Institut

Supérieur d'Informatique Programmation et Analyse (ISIPA) Matadi, UNICEF and UNESCO for their dedication and contributions. The final version of the education sector PER benefitted from very helpful comments and suggestions from our colleagues Quentin Wodon (Lead Economist, GEDDR) and Atou Seck (Sr. Education Specialist, GEDDR), as well as by Emanuela Di Gropello (Program Leader, AFCW3) who served as peer reviewers for the report. The team is also grateful for the guidance and support provided Ahmadou Moustapha Ndiaye (Country Director, AFCC2) and other staff members in the Country Team. Report edited by Burton Bollag and translated into French by Aude DiPaolantonio. v

Table of Contents

Acknowledgments ...................................................................................................................................... iv

Executive summary ...................................................................................................................................... x

I. Introduction ......................................................................................................................................... 1

II. Country Context .................................................................................................................................. 3

Demographic context .................................................................................................................... 3

Economic context .......................................................................................................................... 4

III. Education Sector Context .................................................................................................................... 6

Education system evolution and structure .................................................................................. 6

Structure of the education system .............................................................................................. 12

Evolution of sector goals and priorities- education sector strategy .......................................... 15

IV. Education Sector Performance .......................................................................................................... 18

Access (enrollment and out-of-school) ...................................................................................... 18

Internal efficiency ....................................................................................................................... 22

Equity ........................................................................................................................................... 22

Learning outcomes ...................................................................................................................... 24

Literacy, and current educational attainment of the population ............................................. 26

Returns to education ................................................................................................................... 27

Human capital development ....................................................................................................... 29

V. Education Sector Financing .............................................................................................................. 33

Budget planning and execution process ..................................................................................... 33

Education sector funding sources and shares ............................................................................ 37

Budget allocation and execution ................................................................................................ 43

Role of government in protecting equity .................................................................................. 49

Unit cost analysis ......................................................................................................................... 52

Affordability of schools and role of households ........................................................................ 62

VI. Management of the Education Sector............................................................................................... 73

Efficiency of resources utilization .............................................................................................. 73

Drivers of internal inefficiencies ................................................................................................ 77

Management of human resources .............................................................................................. 92

VII. Conclusions and Policy Recommendations...................................................................................... 98

vi

Conclusions.................................................................................................................................. 98

Policy recommendations .......................................................................................................... 104

References ................................................................................................................................................ 112

Annexes .................................................................................................................................................... 114

Annex A. Methodological Notes .............................................................................................. 114

Annex B. Tables ......................................................................................................................... 123

Annex C. Figures ....................................................................................................................... 140

Annex D. Boxes ......................................................................................................................... 152

vii

List of Figures

Figure 1: Demographic 2005-2020: population pyramid (left) and by school age cohort (right) ............ 3

Figure 2: Real GDP growth rates (%) ......................................................................................................... 5

Figure 3: Central government finances ...................................................................................................... 6

Figure 4: Chronology of main events in education sector in the DRC ..................................................... 8

Figure 5: Organizational chart of primary and secondary education in the DRC .................................. 10

Figure 6: Enrollment by school type (left) and by level of education (right) ......................................... 11

Figure 7: Enrollment in higher education- trend (left) and by type of institution (right, 2012). ......... 12

Figure 8: The education system in the DRC ............................................................................................. 14

Figure 9: Gross enrollment rates by education level ................................................................................ 18

Public Expenditure Review of the

Education Sector in the Democratic

Republic of Congo

An Efficiency, Effectiveness, and Equity Analysis

Public Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure Authorized

ii

Report No. ACS14542

Democratic Republic of Congo:

Education Sector Public Expenditure Review

An Efficiency, Effectiveness, and Equity Analysis

October, 2015

i

Vice President: Makhtar Diop

Country Director: Ahmadou Moustapha Ndiaye

Senior Director: Claudia Maria Costin

Director: Amit Dar

Practice Manager: Peter Nicolas Materu

Task Team Leader: Kebede Feda

ii

CURRENCY EQUIVALENTS

(Official exchange rate (LCU per US$, period average, 2013)

Currency Unit = Congolese Franc

US$1 = CDF 920

FISCAL YEAR

January 1 December 31

ABBREVIATIONS AND ACRONYMS

ASSONEPA Association Nationale des Ecoles Privées Agréées

BCECO Bureau Central de la Coordination

BIA Benefit Incidence Analysis

BMD Bachelors-Masters-Doctorate

CODR Coordination des Districts

CPPSB Comité Permanent de Préparation et de Suivi Budgétaire

DEA Data Envelopment Analysis

DEP Direction des Études et Planification

DMU Decision Making Unit

DPSB Direction de la Préparation et du Suivi du Budget

DRC Democratic Republic of Congo

DSCPR Document de la Stratégie de Croissance et de Réduction de la Pauvreté

DTE Decentralized Territorial Entity

EAM Écoles des Arts et Métiers

ECD Early Child Development

ECN École Conventionnée

ECOFIRE Commission Économique, Financière et de Reconstruction

EFA-FTI Education for All Fast Track Initiative

EG Écoles Générales

EMIS Education Management Information System

EN Écoles Normales

ENC École non Conventionnée

EP Écoles Professionnelles

EPR École Privée

EPSP Enseignement Primaire, Secondaire et Professionnel

ET Écoles Techniques

FDI Foreign Direct Investment

GDP Gross Domestic Product

GER Gross Enrollment Ratio

GPE Global Partnership for Education

GPI Gender Parity Index

iii

HBS Household Budget Survey

HCP Human Capital Projection

HDI Human Development Index

ICT Information and Communication Technology

INS Institut National de la Statistique

IRR Internal Rate of Returns

ISP Instituts Supérieur Pédagogiques

IST Instituts Supérieur Technique

MAS Ministère des Affaires Sociales

MDG Millennium Development Goals

Nouvelle Citoyenneté

MTEF Medium-Term Expenditure Framework

NER Net Enrollment Ratio

PASEC Programme d'Analyse des Systèmes Éducatifs de la CONFEMEN

PCR Primary Completion Rate

PER Public Expenditures Review

PETS Public Expenditure Tracking Survey

PIE PGAI

PROVED Province Educative

PRRIS Projet de Réhabilitation et de Reconstruction des Infrastructures Scolaires SECOPE Service de Contrôle de la Paie des Enseignants

Sous-PROVED Sous Province Educative

SSA Sub-Saharan Africa

STR Student Teacher Ratio

TVET Technical Vocational Education and Training

UGP Unité de Gestion de Projet

UNAZA Université Nationale du Zaïre

UPE Universal Primary Education

WDI World Development Indicator

iv

Acknowledgments

The Public Expenditure Review (PER) of the Education Sector in the Democratic Republic of Congo was prepared by a World Bank Group team consisting of Kebede Feda (Economist, TTL, GEDDR), Tanya Savrimootoo (Consultant, GEDDR), Élisé Wendlassida Miningou (Consultant, GEDDR), and Sabiti Kalindula (Consultant, GEDDR). During the preparation of the report, the team also benefitted from extensive comments and input from Chadi Bou Habib (Sr. Country Economist, GMFDR) for the chapter on Public Expenditure Management and Financial Accountability Review (PEMFAR), as well as on the macroeconomic section of the PER. Franck Adoho (Economist, GPVDR) provided access to household surveys and data files. The team would like to thank Peter Materu (Practice Manager, GEDDR) for his support and guidance during the study; Dung-Kim Pham (Sr. Operations Officer, GEDDR), Luc Laviolette (Program Leader, AFCC2), Kirsten Majgaard (Economist, GEDDR), Hadia Nazem Samaha (Sr. Health Specialist, GHNDR), and Yisgedullish Amde (Country Program Coordinator, AFCCD) for providing useful input during various stages of the study. The team would also like to express its thanks to Lalaina Noelinirina Rasoloharison and Pegdwende Diane Porgo in Washington D.C. and Christelle Tandundu Epuza and Patricia Komina Dele in Kinshasa, DRC, for their support during the missions and preparation of the report.

The team would particularly like to thank the education sector stakeholders in the DRC who

participated in the workshops, provided valuable qualitative information to supplement the analysis

and provided invaluable feedback on the initial draft. While it is not possible to mention the names of

each person that provided input, we would like to particularly the following individuals for their contribution: Jean-Marie Mangobe (SECOPE), Jerôme Bokwango (DEP), Gervais Songa-Munyaka and

Pa-Kore Bwalankay (Inspection Générale), Mopolo Mokute (Ministère du Plan, PGAI), Fabrice Mansila

(CAT), Abeli Jafari and Masikini Mukela (BCECO), Kelotin Muntwambuka (DPSB), Thomas Poirier (Ambassade de France), and Prof. Justin Phoba Mvika (ISC Matadi). The team is also grateful for the

partnership with UNICEF and would like to thank its representatives in Kinshasa - Elsa Duret, Nathalie

Meyer and Valentina Prosperi - for their contributions during the workshops. Many counterpart staff and focal points participated in the study and helped in the data collection

Université Protestante au Congo (UPC), Institut Supérieur de Commerce (ISC) Matadi, l'Institut

Supérieur d'Informatique Programmation et Analyse (ISIPA) Matadi, UNICEF and UNESCO for their dedication and contributions. The final version of the education sector PER benefitted from very helpful comments and suggestions from our colleagues Quentin Wodon (Lead Economist, GEDDR) and Atou Seck (Sr. Education Specialist, GEDDR), as well as by Emanuela Di Gropello (Program Leader, AFCW3) who served as peer reviewers for the report. The team is also grateful for the guidance and support provided Ahmadou Moustapha Ndiaye (Country Director, AFCC2) and other staff members in the Country Team. Report edited by Burton Bollag and translated into French by Aude DiPaolantonio. v

Table of Contents

Acknowledgments ...................................................................................................................................... iv

Executive summary ...................................................................................................................................... x

I. Introduction ......................................................................................................................................... 1

II. Country Context .................................................................................................................................. 3

Demographic context .................................................................................................................... 3

Economic context .......................................................................................................................... 4

III. Education Sector Context .................................................................................................................... 6

Education system evolution and structure .................................................................................. 6

Structure of the education system .............................................................................................. 12

Evolution of sector goals and priorities- education sector strategy .......................................... 15

IV. Education Sector Performance .......................................................................................................... 18

Access (enrollment and out-of-school) ...................................................................................... 18

Internal efficiency ....................................................................................................................... 22

Equity ........................................................................................................................................... 22

Learning outcomes ...................................................................................................................... 24

Literacy, and current educational attainment of the population ............................................. 26

Returns to education ................................................................................................................... 27

Human capital development ....................................................................................................... 29

V. Education Sector Financing .............................................................................................................. 33

Budget planning and execution process ..................................................................................... 33

Education sector funding sources and shares ............................................................................ 37

Budget allocation and execution ................................................................................................ 43

Role of government in protecting equity .................................................................................. 49

Unit cost analysis ......................................................................................................................... 52

Affordability of schools and role of households ........................................................................ 62

VI. Management of the Education Sector............................................................................................... 73

Efficiency of resources utilization .............................................................................................. 73

Drivers of internal inefficiencies ................................................................................................ 77

Management of human resources .............................................................................................. 92

VII. Conclusions and Policy Recommendations...................................................................................... 98

vi

Conclusions.................................................................................................................................. 98

Policy recommendations .......................................................................................................... 104

References ................................................................................................................................................ 112

Annexes .................................................................................................................................................... 114

Annex A. Methodological Notes .............................................................................................. 114

Annex B. Tables ......................................................................................................................... 123

Annex C. Figures ....................................................................................................................... 140

Annex D. Boxes ......................................................................................................................... 152

vii

List of Figures

Figure 1: Demographic 2005-2020: population pyramid (left) and by school age cohort (right) ............ 3

Figure 2: Real GDP growth rates (%) ......................................................................................................... 5

Figure 3: Central government finances ...................................................................................................... 6

Figure 4: Chronology of main events in education sector in the DRC ..................................................... 8

Figure 5: Organizational chart of primary and secondary education in the DRC .................................. 10

Figure 6: Enrollment by school type (left) and by level of education (right) ......................................... 11

Figure 7: Enrollment in higher education- trend (left) and by type of institution (right, 2012). ......... 12

Figure 8: The education system in the DRC ............................................................................................. 14

Figure 9: Gross enrollment rates by education level ................................................................................ 18