100074  Benin   SABER Country Report SCHOOL FEEDING 2015        Policy Goals Status 1. Policy Frameworks SchoolfeedingisnotincludedinthePovertyReductionandGrowthStrategy2011Ͳ2015.A nationalschoolfeedingpolicyispreparedbutisnotyetvalidatedandpublished.  2. Financial Capacity Schoolfeedingisfundedthroughthenationalbudget.Abudgetlineexistsbuttheallocated fundsdonotcoveralltheneeds.  3. Institutional Capacity and Coordination Thereisnomultisectoraltechnicalcommitteetocoordinatetheimplementationofthe schoolfeedingprogram.Thereisaspecificunit(Directiondel’AlimentationScolaire)with  insufficientresourcesandtrainedstaff. 4. Design and Implementation Whilethisisnomonitoringandevaluation(M&E)plan,thereisaunitdedicatedtoM&E whichneedstobestrengthened.Therearenonationalstandardsfortheprocurementof  foodandthearrangementoftheprogram’slogistics. 5. Community Roles-Reaching Beyond Schools Schoolfeedingmanagementcommitteesexistandinvolveparents,teachersandstudents. Parentsfeelonlypartialownershipofthecommunity’sschoolfeedingprogramduetotheir  limitedcontributions.Capacitystrengtheningisneeded.       THEWORLDBANK BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  Introduction CountryOverview   This report presents an assessment of school feeding TheRepublicofBeninisinSubͲSaharanAfricaandcovers policies and institutions that affect young children in an area of 114, 763 km ². It is bordered to the north by Benin. The analysis is based on a World Bank tool the Niger River (120 km), to the northͲwest by Burkina developed as part of the Systems Approach for Better Faso (270 km), to the east by the Federal Republic of Education Results (SABER) initiative that aims to Nigeria (750 km), to the west by the Republic of Togo systematically assess education systems against (620 km), and to the south by the Atlantic Ocean (125 evidenceͲbased global standards and good practice to km). assist countries reform their education systems for  properlearningforall. Benin's population is estimated at about 10 million, of  which women comprise 51.2 percent of the population. School feeding policies are a critical component of an The natural growth rate is 3.5 percent. The per capita effective education system, given that children's health GDP is estimated to be around 1,428 USD with an and nutrition impact their school attendance, ability to economic growth rate of 5.6 percent in 2013 and an learn, and overall development. A school feeding inflationrateof6percent. program is a specific schoolͲbased health service, which  canbepartofacountry’sbroaderschoolhealthprogram, Benin is a lowͲincome country, ranked 165 out of 187 and often a large amount of resources are invested in a countries according to the Report on the 2014 Human school feeding program. SABERͲSchool Feeding collects, Development of the United Nations Development analyzes, and disseminates comprehensive information Programme.1 on school feeding policies around the world. The overall  objective of the initiative is to help countries design The agricultural sector is the main source of wealth effective policies to improve their education systems, creationatthenationallevelandisanimportantsource facilitate comparative policy analysis, identify key areas offoreignexchange. to focus investment, and assist in disseminating good  practice. TheresultsoftheGlobalVulnerabilityAnalysisandFood  Security (AGVSA) assessment conducted in 2013 show Inlate2013,theWorldFoodProgramme(WFP)launched that11percentofthepopulationfacesfoodinsecurity.2 a Revised WFP School Feeding Policy that incorporates The same study has clearly established a link between SABERͲSchool Feeding. The revised policy requires every the level of food insecurity, food consumption and WFP country office with a school feeding component to household poverty and the education level of the undertakeapolicydialoguewiththeEducationSectorin household head. About 76 percent of food insecure the country as part of capacity building activities. WFP householdshaveaheadofhouseholdwithnoeducation decided to use SABERͲSchool Feeding as one of their andthechildrenofthesehomesarelesslikelytoattend policy tools to guide the policy dialogue and to assess in schoolthanchildrenfromotherhouseholds. a more systematic way the transition of school feeding programs to national ownership and/or the strengtheningofnationalschoolfeedingprograms.WFP EducationandHealthinBenin willintegratethistoolintotheirprojectpreparationfrom 2015onwards. Education  Overthepastfiveyears,considerableprogresshasbeen made in the areas of access to education and gender equity (Net Enrolment Rate of 97.3 percent in 2012 against77.7percentin2006andParityIndexgirls/boys, 0.95 in 2012 against 0.86 in 2006). However, there are still some weaknesses in the school system as well as remarkableregionaldisparities.Challengesinclude:  1 UNDP,2014. WorldFoodProgramme(WFP),2014a. 2  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  2 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  x At the start of the primary school cycle, more deaths per 1,000 live births, and malaria was the most than20percentofstudentsdropout; commonlycitedcauseofdeathinchildrenundertheage x Over the past five years, the repetition rate has offive.5Moreover,slightlymorethanonepercentofthe beenhigherthan11percentinprimary; population between the ages of 15 and 49 has HIV. The x A slow increase in the primary completion rate, number of children 14 years old and younger who have which rose from 65 percent in 2006 to 77 HIVhasincreasedfrom5,300in2000to8,400in2013.6 percent in 2013, which does not guarantee the achievement ofthetarget of100percentset by the Millennium Development Goals (MDGs) by TheCaseforSchoolFeeding 2015;  x Relatively low academic performance by School feeding programs, defined here as the provision learners. of food to schoolchildren, can increase school  enrolment7and attendance—especially for girls.8When In the search for causes of the low efficiency of the combined with quality education, school feeding schoolsystem,itwasshownthatchildrenwhoaremost programs can increase cognition 9 and educational vulnerable to food insecurity with critical issues of success. 10 With appropriately designed rations, school householdnutritionoftenfailtoattendclassesregularly feeding programs can improve the nutrition status of andperformwellacademically.Schoolfeeding,thus,has preschoolͲ and primary schoolͲaged children by been identified as one of the essential measures to addressing micronutrient deficiencies. Combined with correctsomeoftheseweaknesses. local agricultural production, these programs can also providesmallͲscalefarmerswithastablemarket.School Health feeding programs can provide shortͲterm benefits after Benin’s population faces many health challenges. Life crises,helpingcommunitiesrecoverandbuildresilience, expectancy at birth is 59 years. In 2012, approximately in addition to longͲterm benefits by developing human 55 percent of deaths were caused by communicable capital.11School feeding programs can be classified into diseases and maternal, prenatal and nutrition two main groups: inͲschool feeding (when children are conditions, which is a decrease from 2000. Deaths fed in school) and takeͲhome rations (when families are caused by nonͲcommunicable diseases in 2012 were 36 given food if their children attend school regularly). A percent of the total deaths, which is an increase from majoradvantageofschoolfeedingprogramsisthatthey 2000.In2012,approximately6percentofthepopulation offerthegreatestbenefittothepoorestchildren.Several wasundernourished.3 studies 12 have indicated that missing breakfast impairs  educationalperformance. Access to improved sanitation facilities has improved  since 2000, but there is a large disparity between rural Present data suggests that almost every country is andurbanaccess.Only5percentoftheruralpopulation seekingtoprovidefoodtoitsschoolchildren.Therefore, had access while 25 percent of urban residents had especially for lowͲincome countries where most foodͲ access to improved sanitation facilities in 2013. A larger insecure regions are concentrated, the key issue is not percentageofthepopulationhadaccesstoanimproved whether a country will implement schoolͲfeeding water source. In rural regions, 69 percent of rural programsbutratherhowandwithwhatobjectives. residentshadaccesswhile85percentofurbanresidents  hadaccesstoanimprovedwatersourcein2013.4 The social shocks of recent global crises led to an  enhanced demand for school feeding programs in lowͲ Malaria remains a prevalent disease in Benin. The incomecountriesastheyservedasasafetynetforfoodͲ mortality rate for children under five in 2013 was 85 insecure households through an income transfer. In  3 9 WorldBank,2014. Whaleyetal.,2003;Kristjanssonetal.,2007;Jukesetal.,2008. 4 10 Ibid. Tan,Lane,andLassibille,1999;Ahmed,2004;Adelmanetal.,2008. 5 11 WorldHealthOrganization,2012. WFP,2013 6 12 WorldBank,2014. Simeon and GranthamͲMcGregor, 1989; Pollitt, Cueto, and Jacoby, 1998; 7 Ahmed,2004;Gelli,Meir,andEspejo,2007. Simeon,1998. 8 Jacoby,Cueto,andPollitt,1996;Powelletal.,1998;Kristjanssonetal.,2007.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  3 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  response to this amplified request, the United Nations and (iii) those implemented with funding from the FastͲ World Food Programme (WFP) and the World Bank TrackInitiative(FTI). jointly undertook an analysis titled Rethinking School  Feeding. 13 This initiative sought to better understand Other types of feeding have ceased to function for how to develop and implement effective school feeding multiple reasons. However, these schools were taken programs as a productive safety net that is part of the over by one of the three types of canteens that are still response to the social shocks, as well as a fiscally functional. sustainable investment in human capital. These efforts  are part of a longͲterm global goal to achieve Education SchoolcanteenexperienceswithWFP ForAllandprovidesocialprotectiontothepoor. WFP has supported the government in the implementation of school feeding projects since 1975. SchoolFeedingPrograminBenin Thesupplyoffoodstaplesmakesitpossibletoofferahot  meal prepared on site in schools. Food is purchased at Schoolfeedinghasbeenidentifiedasoneoftheessential the local, regional or international market with the measurestoaddresslowenrolmentandretention. contribution of partners. The daily food ration per child  is corn (75g), rice (75g), beans/split peas (30g), oil (10g) This commitment is reflected in most documents andiodizedsalt(3g). produced in the context of achieving the Millennium  Development Goals (MDGs). In Benin, these documents The current project, BEN 200045 “Promotion of school include the Growth Strategy for Poverty Reduction feeding”currentlyassistsmorethan95,000beneficiaries (GPRS),theTenͲYearPlanDevelopmentoftheEducation in 484 schools in 30 of the 77 municipalities in the Sector (PDDSE) 14 , the Strategic Recovery Plan Sector country. Agriculture(PSRSA),theStrategicDevelopmentPlanand  Nutrition (PSDAN) 15 , and the commitment was In order to sustain the achievements of the project and reaffirmed in the United Nations Framework Plan for to improve the nutritional intake of meals offered to DevelopmentAssistanceofBenin(UNDAF2014Ͳ2018)16. students in the school canteen, a school garden project  was initiated and implemented jointly with the In executing the recommendations of the National governmentthroughtheMinistryofEarlyChildhoodand ForumonSchoolFeedingheldinCotonoufromApril13Ͳ Primary Education (MEMP), the Ministry of Agriculture, 15, 2010, a policy document called the National School Livestock and Fisheries (MAEP) and the Food and Feeding Policy Supply was developed and validated. It AgricultureOrganization(FAO). needs to be adopted by the Council of Ministers and  published.17 TheNationalDirectorateofWFPProjects(DNͲPAM)was  established and placed under the Ministry in Charge of Amongthe7,73318publicprimaryschoolsthatexistedin Development for the contractual obligations of the Beninin2013,only2,228wereequippedwithcanteens, government under the binding agreement with WFP. It anationalcoveragerateof26.63percent. Thissituation provides storage, maintenance, transportation and is explained by the fact that school feeding has fewer distribution of food and other items within the resourcesasneedsincreaseyearly. beneficiary structures. It has 15 stores with a capacity rangingfrom300to500tonnesinalldepartmentsofthe SchoolCanteenExperiencesinBenin country and 7 to 10 trucks that transport food. A  quarterlydistributionoffoodismadeonaregularbasis. Benin has experimented with several types of school  canteens. But now, three types of canteens are Thereisasignificantmonitoringsystemthatcollectsand underway with methods of intervention differing from processes information about schools. A technical onepartnertoanother.Thethreetypesare(i)canteens steering committee composed of representatives of the supportedbyWFP(ii)thoseassistedbythegovernment Directorate of School Feeding (DAS), the DNͲWFP,  13 16 Bundyetal.,2009. RepublicofBenin,2014a.pg.13 14 RepublicofBenin.MinistèresenChargedel’Education,2006.Pg.40 17 RepublicofBenin,2014b. 15 18 RepublicofBenin,2009a. MEMP,2013.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  4 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  Management Unit FTI Programme and WFP was Treasury and Public Accounting (DGTCP). The provider establishedtomonitortheproject. hired for each school is responsible for providing one  meal a day at noon to every child in that school. The Schoolcanteensexperienceswiththegovernment provider is paid fortnightly at the city office upon the Since2000,andinordertoensuretheprovisionofschool presentation ofdocumentsproving thattheservice was feeding to children, the Government of Benin renderedtotheschool.19 established a school canteen project drawing on WFP's  approach.Anannualbudgetallocationof1.5billionCFA Monitoring is carried out by local NGOs. The main is regularly available to the Ministry of Early Childhood problemhereisthedelayinpaymentofservice,whichis and Primary Education for the operation of school likelytodecreasethesupplyandthequalityoffood. canteens.Thenumberofschoolscanteenrosefrom144  in 2000 to 1,144 in 2014 without significant increase in Moreover,itshouldbenotedthatthelackofcommunity thebudget. participationinthefinancingofthesecanteensdoesnot  bode well for the sustainability of school feeding once The food basket includes corn, rice, beans, oil and salt, theprogramends. but the government canteen also offers pasta, cassava flourandcannedfish.  FiveKeyPolicyGoalstoPromoteSchool TomaketheschoolfeedingactivitiesinBeninvisible,the Feeding Directorate of School Feeding (DAS) was established in  2013 under the Ministry of Early Childhood and Primary Therearefivecorepolicygoalsthatformthebasisofan Education. This department coordinates the effective school feeding program. Figure 1 illustrates interventionsrelatedtoschoolfeeding. these policy goals and outlines respective policy levers  andoutcomesthatfallundereachgoal. Despite the efforts of the government to allocate  sufficient resources, the limited budget does not cover The first goal is a national policy framework. A solid theentireschoolyearasthereareonlyenoughresources policy foundation strengthens a school feeding forfourmonthsoftheschoolyear.Thelackofsufficient program’s sustainability and quality of implementation. resources is worsened by the increasing number of National planning for school feeding as part of the schools from 1,114 in 2014 to 1,307 schools in 2015. country’spovertyreductionstrategy(orotherequivalent There are also logistical difficulties—lack of development strategies) conveys the importance the transportation for products, no stock at the local level, government places on school feeding as part of its and the long process of acquiring food—that do not development agenda. For most countries that are promotetheachievementoftheproject’sobjectives. implementing their own national programs, school  feedingisincludedinnationalpolicyframeworks.20 School canteens experiences with the FastͲTrack  Initiative(FTIͲFCB) The second policy goal for school feeding is financial The establishment of canteens funded by FTI started capacity. Stable funding is a prerequisite for during the 2010Ͳ2011 school year. FTI operates 554 sustainability. However, where need is greatest, canteens (501 canteens targeted by WFP and 53 programstendtobethesmallestandthemostrelianton canteens previously assisted by DANIDA). The approach external support. Funding for these programs can come to implementation is to recruit service providers to from a combination of sources, such as nonͲ supply meals to schoolchildren. A daily meal rate of 125 governmental organizations (i.e., WFP) and the francsCFAperstudentisoffered.Thefundsallocatedto government. When a program becomes nationalized, it each school are domiciled at the city office Recette needs a stable and independent funding source, either Perception. This account is funded from the budget through government core resources or development accountofMEMPthroughtheGeneralDirectorateofthe funding. In the long term, a national budget line for  19 20 RepublicofBenin.MinistèreduDeveloppement,DeL’AnalyseEconomique Bundyetal.2009;WFP,2012. etdelaProspective.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  5 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  school feeding is necessary for an effective and stable 1. Latent:Noorverylittlepolicydevelopment program. 2. Emerging:Initial/someinitiativestowardspolicy  development. The third policy goal is institutional capacity and 3. Established:Somepolicydevelopment coordination. School feeding programs are better 4. Advanced:Developmentofacomprehensive executed when an institution is mandated and policyframework accountable for the implementation of such a program.  Effective programs also include multisectoral Each policy goal and lever of school feeding is involvement from sectors such as education, health, methodically benchmarked through two SABER analysis agriculture, and local government, as well as a tools. The first is a scoring rubric that quantifies the comprehensive link between school feeding and other responses to selected questions from the SABER School school health or social protection programs and Feeding questionnaire by assigning point values to the establishedcoordinationmechanisms. answers. The second tool is the SABER School Feeding  Frameworkrubricthatanalyzestheresponses,especially The fourth policy goal is sound design and the written answers, based on the framework’s five implementation. In order to maximize effectiveness, policygoalsandlevers.Formoreinformation,pleasevisit schoolfeedingprogramsshouldclearlyidentifycountryͲ the World Bank’s website on SABERͲSchool Health and specific problems, objectives, and expected outcomes. School Feeding and click on the “What Matters” The country’s context and needs should determine the FrameworkPaperunderMethodology. program’s beneficiaries, food basket (menus), food  modalities and supply chain. Countries and partners   should work towards creating a delicate balance among international, national, and local procurement of foods to support local economies without jeopardizing the qualityandstabilityofthefoodsupply.  ThelastpolicygoaliscommunityrolesͲreachingbeyond schools.Schoolfeedingprogramsthatarelocallyowned, incorporate contributions from local communities, and respond to specific community needs are often the strongest. These programs are most likely to make a successful transition from donor assistance to national ownership. Community participation should be considered at every stage, but without overburdening communitymembers. •‡‘ˆ˜‹†‡…‡Ǧƒ•‡†‘‘Ž• TheprimaryfocusoftheSABERͲSchoolFeedingexercise isgatheringsystematicandverifiableinformationabout the quality of a country’s policies through a SABERͲ School Feeding Questionnaire. This dataͲcollecting instrument helps to facilitate comparative policy analysis, identify key areas to focus investment, and disseminate good practice and knowledge sharing. This holistic and integrated assessment of how the overall policyinacountryaffectsyoungchildren’sdevelopment is categorized into one of the following stages, representing the varying levels of policy development thatexistamongdifferentdimensionsofschoolfeeding:   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  6 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015         Figure1:Policygoalsandpolicyleversforschoolfeeding        SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  7 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015   1.PolicyFrameworksisEMERGING PolicyGoal1:Policy Indicators Score Justification FrameworksinBenin 1A.NationalͲlevel Schoolfeedingis  povertyreduction recognizedasan strategyaswellas  interventionin PolicyLever: educationsectoral thedomainof x Overarchingpoliciesforschoolfeedinginalignment policiesandstrategies educationor identifyschoolfeedingas socialprotection, withnationalͲlevelpolicy aneducationand/or butisnotyet  socialprotection includedinthe A policy foundation helps strengthen the sustainability intervention,withclearly SCRP,theGPRS, andaccountabilityofaschoolfeedingprogramaswellas definedobjectivesand orinothersimilar the quality of its implementation. Nearly all countries sectoralresponsibilities. policiesand with national ownership of programs have wellͲ sectoral articulated national policies on the modalities and strategies. objectivesofschoolfeeding.21 TheSCRP2011Ͳ  2015mentions ThePovertyReductionandGrowthStrategy(GPRS)from foodand nutritionin 2011 to 2015 does not specifically address the issue of generalwithout school feeding.22It has a section on nutrition and food specifyingschool becauseimprovingthepopulation’snutritionconditions feeding. is one component of the government’s development  goal to build human capital.23The GPRS also states that TenYear thegovernmentintendstoimplementtheStrategicPlan Development forFoodandNutrition(PSDAN),whichisoperatedbythe PlanEducation ResultsͲBased National Food and Nutrition Program Sector(PDDSE) (PANAR). 24 PSDAN is a policy document that includes 2006Ͳ2015takes nutritionͲspecificandnutritionͲsensitiveapproachesand intoaccount schoolfeeding focuses on food availability and security in order to without reduce malnutrition.25The National Food and Nutrition mentioningthe CouncilistheagencyresponsibleforPSDAN.TheGrowth goal. StrategyforPovertyReduction(SCRP)alsomentionsthe  needtoaddressnutritionandfoodissues.26 Schoolfeeding  wasdiscussed School feeding is discussed in some sectoral policy duringthe documents, which includes the TenͲYear Development preparationof Plan for the Education Sector (PDDSE) 2006Ͳ2015.27The theGPRS. National School Feeding Policy was developed and Schoolfeeding wasalso validated during a stakeholder workshop in December discussedduring 2013.28Ithasyettobeadoptedandofficiallypublished. thepreparation  ofthisplan.  PDDSEalso  includesthe  subject.   21 25 WFP,2012 FAOBenin,2012. 22 26 GrowthStrategyforPovertyReduction(GPRS)2011Ͳ2015 RepublicofBenin,2010. 23 27 RepublicofBenin,2011;ScalingUpNutrition(SUN),2015. RepublicofBenin,2006. 24 RepublicofBenin,2009. 28 WorldFoodProgramme(WFP),2014b.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  8 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  1B.AnevidenceͲbased Theneedfor technicalpolicyrelatedto technicalpolicy schoolfeedingoutlines  forschoolfeeding theobjectives,rationale, isrecognized,but scope,design,and thispolicyhasnot fundingandsustainability yetbeen oftheprogramand published. comprehensively ANationalSchool addressesallfourother FeedingPolicy policygoals. wasdeveloped andvalidatedin December2013. Ithasyettobe officiallyadopted andpublished. Thepolicyisset tobereviewed andrevised.       SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  9 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  PolicyGoal2:Financial 2.FinancialCapacityisEMERGING CapacityinBenin Indicators Score Justification  2A.National Schoolfeedingis budgetline(s)and integratedinto PolicyLever: fundingisallocated  thenational toschoolfeeding; planningprocess x Governanceofthenationalschoolfeedingprogram fundsaredisbursed andstable throughstablefundingandbudgeting tothe nationalfunding implementation isguaranteedby Stable funding is necessary for the longͲterm levelsinatimely adedicated sustainabilityofaschoolfeedingprogram,especiallyone andeffective budgetline,but thattransitionsfrombeingdonorͲfundedtogovernmentͲ manner. allneedsarenot funded. School feeding programs supported by external met;thereisno partners generally rely on food aid, government inͲkind budgetlineatthe donations, and/or government cash contributions. In regionaland order for the program to be sustainable and nationally schoollevel; owned,theschoolfeedingprogramshouldhaveabudget existingfundsfor schoolfeeding line and be part of the government’s budgeting and aredistributedat planningprocess. thenationallevel andimplemented SchoolfeedingisfundedbythenationalbudgetofBenin unevenly. and international partners such as WFP and FTIͲFonds Commun Budgétaire pooled donor funds. However,  there are no budget lines for school feeding at the regional and school levels because the system is   centralized.DASmanagesthefundsatthenationallevel andprovidesfoodforthegovernment’sschoolcanteens. FTIͲFonds Commun Budgétaire’s school canteens are fundedfromaglobalbudgetwheremoneyisdistributed per school and each school’s funds are domiciled at the city office. The funding from the central level is small withbureaucraticdisbursementprocedures.In2013,the government allocated 1,051,103,904 CFA for the managementandoperationofschoolcanteens,whichis thelowestamountsince2005.29                29 RepublicofBenin,2013.Table9.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  10 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  PolicyGoal3:Institutional notyetadoptedand published.Thereis CapacityandCoordination nomultisectoral inBenin committee 3B.Nationalschool Astructuredevoted PolicyLevers: feedingmanagement toschoolfeedingis unitand  inplaceatthe x SchoolfeedinginterͲsectoralcoordinationand accountability nationallevel,but strongpartnerships structuresarein withlimited x Managementandaccountabilitystructures,strong place,coordinating resources,and institutionalframeworks,andmonitoringand withschoollevel withoutaclear evaluation structures. mandateand sufficient Implementingaschoolfeedingpolicyrequiressignificant personnel; institutional capacity because the program is a complex coordination mechanisms school health intervention. The policy should clearly betweenthe define the roles and responsibilities of stakeholders and national,regional/ actors at all levels. Methodically increasing government local(ifapplicable) capacity to manage a school feeding program is andschoolsarein important to the program’s longͲterm sustainability. A placebutarenot nationalinstitutionthatismandatedandaccountablefor yetfully the implementation of the school feeding program is operational. considered to be a best practice. This institution should  have a specific unit that has adequate resources and Formerlya knowledgeable staff to manage the school feeding Governmental CanteenUnit,the program. Moreover, policies that detail accountability NationalCanteens andmanagementmechanismscanhelpensureprogram ManagementUnit quality and efficiency, especially if the school feeding becamethe programisdecentralized. Directorateof SchoolFeedingwith Benin has no multisectoral steering committee, only a representationat Directorate of School Feeding at the national level with thedepartmental insufficient resources, knowledge and staff for its level. mission. The Directorate of School Feeding provided 3C.Schoollevel Management national coordination for the FastͲTrack school canteen managementand mechanismsof accountability  schoolfeedingin program, which was intended to include school structuresarein schoolsarenot committees consisting of students, parents, and place. standardizedand teachers.30 thenational  frameworkis 3.InstitutionalCapacityandCoordinationisLATENT insufficient  Indicators Score Justification Management 3A.Multisectoral Coordination committeesin steeringcommittee initiativesarenot  schoolsare coordinates systematic. functionalinonly implementationofa  FTIͲFCBschool nationalschool ANationalPolicyon canteens. feedingpolicy SchoolFeedinghas beendeveloped  andvalidatedbut   30 Ibid.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  11 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  PolicyGoal4:Designand 4B.Program design Criteriaand identifiesappropriate  targeting ImplementationinBenin targetgroupsand methodologyhave  targetingcriteria beendevelopedin correspondingtothe linewiththe PolicyLever: nationalschoolfeeding nationalschool policyandthe feedingpolicy; x Qualityassuranceofprogrammingandtargeting, situationanalysis. situationanalysis modalities,andprocurementdesign,ensuring whichassesses designthatisbothneedsͲbasedandcostͲeffective needshasnotyet beencompleted. A wellͲdesigned school feeding policy that is based on evidence is critical to the implementation of a quality 4C.Foodmodalities Theneedto schoolfeedingprogram.Thepolicycanincludedetailson andthefoodbasket  establishnational targeting the correct beneficiaries, selecting the proper correspondtothe standardsforschool modalities of food delivery, and choosing a quality food objectives,localhabits feedingmodalities basket. Over time, the school feeding policy may be andtastes,availability andcontentofthe oflocalfood,food foodbasketis redesigned or modified according to reassessments of safety,andnutrition recognized,butnot theschoolfeedingprogram. contentrequirements. yetmaterialized. 4D.Procurementand Theneedto Thereis no M&Eplan, butaunitdedicatedto M&Eisin logisticsarrangements  establishnational place and needs to be strengthened. There are no arebasedonprocuring standardsforthe national standards for the procurement of food and aslocallyaspossible, proceduresfor logisticalarrangements. takingintoaccountthe procurementand  costs,thecapacitiesof logisticsis 4.DesignandImplementationisLATENT implementingparties, recognized,butnot Indicators Score Justification theproduction yetmaterialized. 4A.Afunctional Theimportanceof capacityinthe  monitoringand  M&Eisrecognized, country,thequalityof Stabilityinthe evaluationsystemisin butthereisstillno thefood,andthe deliveryis placeaspartofthe government stabilityofthe sometimesdifficult. structureofthelead monitoringand pipeline. ThereisaNational institutionandused evaluationofthe DirectorateofWFP forimplementation implementationof Projectswhichhas andfeedback. schoolfeeding. shopsandtrucksin  alldepartmentsbut Theimportanceof itmustbe monitoringisseen strengthened. butaclear Therearecurrently mechanismisnot nologistical yetestablished. arrangementsthat However,abudget canpromotelocal lineisplannedfor purchases. thedevelopmentof   toolsformonitoring andevaluation.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  12 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  PolicyGoal5:Community 5.CommunityRolesͲReachingBeyondSchoolsis EMERGING Roles–ReachingBeyond Indicators Score Justification SchoolsinBenin 5A.Community Thereisa  participatesinschool  management  feedingprogram committeefor PolicyLever: design, schoolfeeding,but implementation, theparticipationof x Communityparticipationandaccountability managementand parentsand  evaluationand community Therole of the community shouldbeclearlydefinedina contributesresources. membersshouldbe school feeding policy because community participation further and ownership improves the school feeding program’s strengthened;the chances of longͲterm sustainability. If the government possibilityofthem monitoringand placestheresponsibilityofsustaining theschoolfeeding influencingthe program on the community, the school feeding policy schoolfeeding should detail the guidelines, minimum standards, and programisnot support for the community to implement the program. sufficiently The school feeding policy can also include mechanisms recognized. forthecommunitytoholdthegovernmentaccountable.  Existenceof At the school level, there may be a school management management committeecomposedof parents,teachers,and students committeeinall thatactsasaliaisonbetweentheschoolandcommunity schoolswith canteens. andmanagestheschoolfeedingprogram.Careshouldbe takennottooverburdenthecommunity,becauseinsome Thereislow cases the community may introduce fees to support the participationof local school feeding program, which can negatively parentsand impact enrolment rates. CommunityͲassisted school communitiesinthe feeding programs are usually most successful in foodͲ managementof secureareas. schoolcanteens.  Canteenmanagementcommitteescomposedofparents, Amechanismfor students and teachers exist in each school. Capacities monitoringand supervisionbythe were strengthened for the management of school communityexists canteens.However,thesmallcontributionoftheparents butisnonͲ inhibits a sense of ownership of the school feeding functional. program.   WFPsupportscommunityownershipofschoolcanteens To view the scores for all indicators and policy goals in and encourages community involvement in school onetable,pleaserefertoAppendix1. feeding programs. Parent associations commonly   overseeschoolcanteensbymaintainingthekitchenand food storage areas. 31 Although there are canteen management committees, parental involvement can be increased.    31 WorldFoodProgramme,(WFP)2014c.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  13 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  Conclusion PolicyOptions:  x Accelerate the adoption process and then An analysis of the five policy goals shows that, for the publishtheschoolfeedingpolicy.Tothisend,the policy framework, the Poverty Reduction and Growth Ministry of Early Childhood and Primary Strategy (GPRS III) 2011Ͳ2015 does not specifically Education (MEMP) has a key role to play in include in its strategic axes questions of food and monitoring. nutrition in schools (although nutrition is generally x Establish as soon as possible an interͲsectoral addressed). Although some sectoral policy documents steeringcommitteeandmakeitfunctional. seem to refer to school feeding, the problem remains x Integrate School Feeding in the TenͲYear unsolved. The National School Feeding Policy was Development Plan Education Sector (PDDSE) as developed and validated, but it needs to be reviewed aclearandspecificgoal. beforeitsadoptionandpublication.Intermsoffunding, x Advocate for the integration of school feeding an effort is made by the Government of Benin, which into sectoral policy documents and in the next provides an annual budget to finance school canteens. povertyreductionandgrowthstrategy. Butallocationsremainlowanddisbursementprocedures x SchoolͲbased management committees should complex. There is no suitable mechanism for be involved in the management of school coordinationandimplementationofthenationalschool feeding.Thisisnecessaryforsustainability. feeding program. An interͲsectoral steering committee  should be put in place to take into account all the essential sectors for the implementation of a school feeding program. Similarly, special attention should be giventosmalllocalproducersandtheimplementationof mechanisms to increase local production purchases. Action must be taken to promote the participation and contribution of communities in implementing school feedingprograms.  In terms of implementing a school feeding policy, Benin is still in a Latent stage. The proper implementation of thedevelopedactionplanwillensureanimprovementof thecurrentsituation.   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  14 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  Appendix1 Table1.LevelsofDevelopmentofSABERSchoolHealthIndicatorsandPolicyGoalsin Benin   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  15 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  Policy Goal 3: Institutional Capacity and Coordination Multisectoral steering committee from at least three sectors (e.g. education, social protection, Multisectoral steering agriculture, health, local committee from at least government, w ater) tw o sectors (e.g. School feeding Multisectoral steering Sectoral steering coordinates implementation education, social coordination - strong committee coordinates Any multisectoral steering committee coordinates of a national school feeding protection, agriculture, partnerships and implementation of a committee coordination implementation of a policy; this government-led health, local government, inter-sector national school feeding efforts are currently nonsystematic national school feeding committee provides w ater) coordinates coordination policy policy comprehensive coordination implementation of a (across international national school feeding agencies, NGOs, the private policy sector and local business representatives as w ell) and L is part of a w ider committee on school health and nutrition A A school feeding unit A fully staffed school A fully staffed school T exists at the national feeding unit w ith a clear feeding unit exists at the level, but it has limited mandate exists at the national level, based on an E A specific school feeding resources and limited national level, based on National school feeding unit does not yet exist at staff numbers and lacks an assessment of staffing assessment of staffing and N management unit and resources needs, w ith a accountability the national level; a clear mandate; w hile and resources needs; clear mandate, and pre- and T coordination betw een the coordination coordination mechanisms Management and structures are in place, in-service training; national, regional/local (if mechanisms betw een betw een the national, accountability coordinating w ith coordination mechanisms applicable), and schools the national, regional/local (if structures, including school level structures betw een the national, is lacking regional/local (if applicable), and school staffing - strong regional/local (if applicable), applicable), and school level are in place and institutional and school level are in place level are in place, they functioning in most framew orks for and fully functioning are not fully functioning instances implementation National guidance on Mechanisms for All schools have a required mechanisms School level managing school feeding Most schools have a mechanism to manage for managing school management and at the school level are mechanism to manage school feeding, based on feeding are available at accountability non-uniform and national school feeding, based on national guidance, w ith preand the school level, but structures are in place guidance on this is national guidance in-service training for these are not yet lacking relevant staff implemented fully Policy Goal 4: Design and Implementation The M&E plan for school feeding is integrated into national monitoring or The M&E plan for school A functional monitoring information management feeding is integrated into and evaluation (M&E) The importance of M&E is A government M&E plan systems and data collection national monitoring or system is in place as recognised, but exists for school feeding and reporting occurs information management part of the structure of government systems are w ith intermittent data recurrently at national, systems and data the lead institution and not yet in place for M&E collection and reporting regional and school levels; collection and reporting used for of school feeding occurring especially at analysed information is occurs recurrently at implementation and implementation the national level shared and used to refine national and regional feedback and update programs; levels baseline is carried out and program evaluations occur periodically Targeting criteria and a The need for targeting is targeting methodology Targeting criteria and a Program design recognised, but a exists and is implemented targeting methodology is Targeting criteria and a identifies appropriate situation analysis has not corresponding to the being developed targeting methodology target groups and yet been undertaken that national school feeding corresponding to the exists and is implemented targeting criteria assesses school feeding policy and situation analysis national school feeding corresponding to the corresponding to the needs and neither (including costings for policy; a situation national school feeding national school feeding targeting criteria nor a various targeting and analysis assessing policy and a situation policy and the situation targeting methodology designs); M&E information needs is incomplete as analysis assessing needs analysis has been established as is used to refine and update Quality assurance of yet yet targeting and coverage on a L programming and periodic basis A targeting, National standards on food modalities, and National standards on modalities and the food T procurement design, Food modalities and food modalities and the National standards on basket have been ensuring design that the food basket food basket have been food modalities and the developed and correspond E is both needs-based correspond to the There is recognition of the developed and food basket have been to objectives, local habits N and cost-effective objectives, local habits need for national correspond to tw o or developed and correspond and tastes, availability of and tastes, availability standards for food more of the follow ing: to objectives, local habits local food, food safety T of local food, food modalities and the food objectives, local habits and tastes, availability of (according to WHO safety (according to basket, but these do not and tastes, availability of local food, food safety guidelines), and nutrition WHO guidelines), and exist yet local food, food safety (according to WHO content requirements; M&E nutrition content (according to WHO guidelines), and nutrition information is used to refine requirements guidelines), and nutrition content requirements and update food modalities content requirements and food basket on a periodic basis National standards on National standards on procurement and procurement and logistics Procurement and logistics arrangements National standards on arrangements have been logistics arrangements have been developed procurement and logistics developed and are based on are based on procuring and are based on three arrangements have been procuring as locally as as locally as possible, There is recognition of the or more of the follow ing: developed and are based possible, taking into account taking into account the need for national procuring as locally as on procuring as locally as the costs, the capacities of costs, the capacities of standards for possible, taking into possible, taking into implementing parties, the implementing parties, procurement and logistics account the costs, the account the costs, the production capacity in the the production capacity arrangements, but these capacities of capacities of implementing country, the quality of the in the country, the do not exist yet implementing parties, parties, the production food, and the stability of the quality of the food, and the production capacity capacity in the country, pipeline; M&E information is the stability of the in the country, the the quality of the food, and used to refine and update pipeline quality of the food, and the stability of the pipeline procurement and logistics the stability of the arrangements pipeline   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  16 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  Policy Goal 5: Community roles--reaching beyond schools The school feeding A school feeding The school feeding management committee E management committee Community Community participates Systems and management committee comprises comprises representatives M in school feeding accountability exists but parent and of teachers, parents, and participation and program design, mechanisms are not yet community member representatives of community members and E accountability - teachers, parents, and implementation, in place for consultation participation could be has clearly defined strong community management and w ith parents and strengthened and community members and responsibilities and periodic R participation and communities have ow nership evaluation and community members on aw areness on the accountability training. Accountability G contributes resources the design, monitoring opportunity to monitor mechanisms are in place by (teachers, parents, (in-kind, cash or as and feedback of the and feedback on the mechanisms to hold w hich communities can hold I children) school feeding programs labor) school feeding program school feeding program is accountable at the school school feeding programs N lacking accountable at the school, level regional, and national levels G     SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  17 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015   of Early Childhood and Primary Education, and His Acknowledgements ExcellencyEricKouagouN'Da.   ThisreportispartofajointWorldBankGroupandWorld Ourthanksalsogotoallworkshopparticipantsfortheir FoodProgram(WFP)efforttohelpcountriesstrengthen attendanceandtheirsenseofpatriotismandfinallytoall their education system policies and institutions thosewhodirectlyorindirectlyfacilitatedthisworkshop. specifically in relation to school health and school  feeding. The SABERͲSchool Feeding tools were applied We also thank the following reviewers of this report: by WFP with support from the Partnership for Child HyacintheGbaye,AndyChiTembon,and MichelleLouie Development (PCD).  This report was prepared from a (WorldBank);andBachirSarr(PCD). SABERͲSchool Feeding questionnaire completed during thenationalSABERworkshopheldMarch19Ͳ20March, 2014,atChantd’OiseauinBenin.  Acronyms  The organization of the SABER workshop demonstrates AFD:AgenceFrançaisedeDéveloppement the willingness of the Government of Benin and its strategicpartnerssuchastheWFP,theWorldBank,and AGVSA: Analyse Globale de la Vulnérabilité et de la PCDtoimplementarealschoolfeedingpolicyinBenin. SécuritéAlimentaire  Theresultsofthisworkshop,presentedinthisreport,are AGVSAN: Analyse de la Vulnérabilité, de la Sécurité thanks to the contribution of all actors and partners AlimentaireetdelaNutrition involved in the implementation of school feeding projectsinBeninandparticularlyWFPanditspartnersin ANCB:AssociationNationaledesCommunesduBénin PCDandtheWorldBank,civilsocietyorganizations,and BM:BanqueMondiale socialpartnersoftheeducationsystem.  CAPE:Celluled’AnalysedesPolitiquesEconomiques The SABER workshop would not have happened at this CCS:ChefdeCirconscriptionScolaire levelofperformancewithoutthetechnicalandlogistical support from the WFP Country Office in Benin, WFP DAS:Directiondel’AlimentationScolaire RegionalOfficeinDakar,theWorldBankandPCD. DDEMP: Direction Départementale des Enseignements  Our thanks go particularly to Ms. Constance Kobolar, MaterneletPrimaire Regional Councillor for Education, WFP Regional Office, DGCTP: Direction Générale du Trésor et de la Dakar; Bachir Sarr, PCD Canada; Fara Rakotondrandriamaro, Assistant Representative; ComptabilitéPublique ArmelleKorogone,ProgrammeOfficer;AntoineHauzeur, DNͲPAM:DirectionNationaledesProjetsPAM ProgrammeOfficer,WFP,Benin;AdagbeAlbert,Director of Office, MEMP; Julienne Berkègui Zime Yerima, DSRP: Document de Stratégie de Réduction de la Director of the School Feeding; Nestor Ezin, Technical Pauvreté Advisor; Elisabeth Assogba; Safiatou Chabi Kobi; Moïbi Adamon, MEMP; Godonou Gnonlonfin, National EMICOV:EnquêteModulaireIntégréedesConditionsde Director, WFP projects/MDAEP; Denial Azandegbe and Vie Theodore Nathael Agossou, Ministry of Agriculture and Fisheries(MAEP);NabilAbdoulaye,MinistryofEconomy FAO: Organisation des Nations Unies pour andFinance(MEF). l’Alimentationetl’Agriculture  OursincerethanksgototheRepresentativeandCountry FCB:FondsCommunBudgétaire Director,WFP,BeninͲTogo,Mr.TaalHousainou,Minister FTI:FastͲTrackInitiative  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  18 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015  INSAE:InstitutNationaldelaStatistiqueetdel’Analyse UNDAF: Plan Cadre des Nations Unies pour l’Assistance Economique auDéveloppement MAEP : Ministère de l’Agriculture, de l’Elevage et de la Pêche References Adelman, S., H. 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RepublicofBenin.MinistèreduDeveloppement,DeL’Analyse WorldFoodProgramme(WFP).2012.“GlobalSchoolFeeding Economique et de la Prospective. «Evaluation ExͲPost Survey”.WorldFoodProgramme,Rome. Des Cantines Scholaries au Benin». Accessed from http://www.ageval.org/3Ͳdownload/ocsͲ2013ͲAIPSͲ WorldHealthOrganization(WHO).2012.“Benin:Health cantinesͲscolaires.pdf Profile”.Accessedfrom http://www.who.int/gho/countries/ben.pdf?ua=1. Scaling Up Nutrition (SUN). 2015. “Putting Policies in Place”. Retrieved from http://scalingupnutrition.org/sunͲ WorldHealthOrganization(WHO).2003.“SkillsforHealth, countries/benin/progressͲandͲimpact/puttingͲpoliciesͲ SkillsͲBasedHealthEducationIncludingLifeSkills:An inͲplace. ImportantComponentofaChildͲFriendly/HealthͲ PromotingSchool.”InformationSeriesonSchoolHealth. Simeon,D.T.,andS.M.GranthamMcGregor.1989.“Effectsof WHO,Geneva. Missing Breakfast on the Cognitive Functions of School Children of Differing Nutritional Status.” American JournalofClinicalNutrition49(4):646Ͳ53.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  20 BENINۣSCHOOLFEEDINGPOLICIES  SABERCOUNTRYREPORT|2015    www.worldbank.org/education/saber The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions,withtheaimofhelpingcountriessystematicallystrengthen their education systems. SABER evaluates the quality of education policies against evidenceͲbased global standards, using new diagnostic toolsanddetailedpolicydata.TheSABERcountryreportsgiveallparties with a stake in educational results—from administrators, teachers, and parents to policymakers and business people—an accessible, objective snapshot showing how well the policies of their country's education systemareorientedtowardensuringthatallchildrenandyouthlearn.  ThisreportfocusesspecificallyonpoliciesintheareaofSchoolFeeding. ThisworkisaproductofthestaffofTheWorldBankwithexternalcontributions.Thefindings,interpretations,andconclusions expressedinthisworkdonotnecessarilyreflecttheviewsofTheWorldBank,itsBoardofExecutiveDirectors,orthegovernments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations,andotherinformationshownonanymapinthisworkdonotimplyanyjudgmentonthepartofTheWorldBank concerningthelegalstatusofanyterritoryortheendorsementoracceptanceofsuchboundaries. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  21