Lagos, Nigeria SABER Country Report Engaging the Private Sector in Education 2014 Independent Private Schools Status 1. Encouraging Innovation by Providers Policy provides no restrictions on private school appointment and redeployment of teachers. The policy allows private providers to set teacher wages without restriction and dismiss teachers. However, schools must comply with national curricula, regional teachers’ standards and class size. 2. Holding Schools Accountable Government sets standards on what students need to learn and by when. Standardized tests are administered in select grades annually. Private schools are required to undergo an inspection though inspections are not carried out on a regular basis. Inspection reports outline a grading system for all inspected schools and sanctions can be administered based on school inspection results. 3. Empowering All Parents Lagos State guidelines stipulate that information must be available to parents and that information is made public on the Ministry’s website. Information may also be made available by the school. Lagos’ policies do not stipulate that parents and students should be part of the inspection process. There is no provision for financial support for families attending private schools. 4. Promoting Diversity of Supply For-profit and non-profit providers including international providers are allowed to operate private schools. Certification standards on land and facilities limit a diversity of supply. LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Table of contents Introduction ............................................................................................................................................................................ 3 Overview of SABER-Engaging the Private Sector .................................................................................................................... 4 Benchmarking education policies: The SABER-EPS methodology……………………………………………………………………….………………6 Education in Nigeria ................................................................................................................................................................ 7 Benchmarking Lagos’s Private Schools ................................................................................................................................. 11 Goal 1: Encouraging Innovation by Providers ................................................................................................................... 11 Goal 2: Holding Schools Accountable ............................................................................................................................... 12 Goal 3: Empowering all Parents, Students, and Communities ......................................................................................... 13 Goal 4: Promoting Diversity of Supply .............................................................................................................................. 15 From Analysis to Action: Policy Options for Lagos................................................................................................................ 17 Policy option 1: Support market entry of new private schools by easing criteria for school registration and allow schools to operate without paying fees as well as letting schools set their own tuition fees ...................................................... 17 Policy Option 2: Improve the quality of learning outcomes moving to a standard-term inspection system and by encouraging continuous improvement at the school level through school improvement planning ............................... 17 Policy Option 3: Increase information availability for parents ......................................................................................... 18 Acknowledgements............................................................................................................................................................... 21 References ............................................................................................................................................................................ 21 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 2 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Introduction around the world, using evidence-based frameworks to highlight the policies and institutions that matter most to In recent years, private sector engagement in education promote learning for all children and youth. —which includes a vibrant mix of non-profit, for-profit SABER-EPS research in Lagos found that access to and faith-based organizations—has grown significantly primary education is not yet universal and that around the world. In the last two decades, the enrolments at the secondary level are very low. Equity percentage of students in low-income countries and quality challenges also remain at the primary and attending private primary schools doubled, from 11 secondary levels. The private sector’s role in provision of percent to 22 percent (figure 1). This growth in private education is substantial at the primary level, though less provision is closely connected to the boom in access that so at the secondary level, where enrolments are low has taken place in low-income countries over the same overall. No non-state schools in Lagos State are eligible two decades: primary net enrolment increased from 55 for government funding, and as such, operate percent to 80 percent between 1990 and 2010. independently. Based on a review of existing policies and As countries redouble their efforts to achieve learning the goal of meeting the challenges of access, quality, and for all at the primary and secondary levels, the private equity, SABER-EPS offers the following sector can be a resource for adding capacity to the recommendations for Lagos to enhance engagement education system. By partnering with private entities, with the private sector in education to promote learning the state can provide access to more students, for all: particularly poor students who are not always able to 1. Support market entry of new private schools by access existing education services (Pal and Kingdon 2010; easing criteria for school registration. Patrinos, Barrera-Osorio, and Guáqueta 2009; Hossain 2007). Additionally, evidence shows that governments 2. Improve the quality of learning outcomes by have been successful at improving education quality and strengthening the inspection system to target student cognitive outcomes in many countries through those schools that need the most support on a effective engagement with private education providers regular basis and encouraging continuous (Barrera-Osorio and Raju 2010; French and Kingdon improvement through school improvement 2010; Barrera-Osorio 2006). plans. Figure 1. Private enrolment as a percentage of total primary 3. Increase the information on private schools enrolments, by country income level made available to parents and provide financial support to families whose children attend Low-income countries private schools. The rest of this report provides an overview of SABER- EPS, followed by a description of the basic education system in Lagos, focusing on the private sector and Middle-income countries government policies related to the private provision of education. The report then uses the SABER-EPS framework to benchmark the policy environment of High-income countries Lagos and, finally, offers policy options to enhance learning for all children in primary and secondary school. Source: Baum et al (2014). This report presents an analysis of how effectively the current policies in Lagos engage the private sector in basic (primary and secondary) education. The analysis draws on the Engaging the Private Sector (EPS) framework, a product of the World Bank’s Systems Approach for Better Education Results (SABER). SABER collects and analyzes policy data on education systems SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 3 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Overview of SABER-Engaging the Private Box 1. Key Private Sector Engagement Policy Goals Sector 1. Encouraging innovation by providers. Local decision making and fiscal decentralization can have positive In many countries, the extent and activity of the private effects on school and student outcomes. Most high- sector in education is largely undocumented and achieving countries allow schools autonomy in unknown. SABER-EPS is working to help change that. managing resources (including personnel) and SABER-EPS assesses how well a country’s policies are educational content. Local school autonomy can improve the ability of disadvantaged populations to oriented toward ensuring that the services of non-state determine how local schools operate. providers promote learning for all children and youth. 2. Holding schools accountable. If schools are given The aim of SABER-EPS is not to advocate private autonomy over decision making, they must be held schooling. The intention is to outline the most effective accountable for learning outcomes. Increases in evidence-based policies specific to each country’s autonomy should be accompanied by standards and current approach toward non-state provision of interventions that increase access and improve quality. education. SABER-EPS assesses the extent to which The state must hold all providers accountable to the policies facilitate quality, access, and equity of private same high standard. education services. Data generated by SABER-EPS can 3. Empowering all parents, students, and communities. further the policy dialogue and support governments in When parents and students have access to information engaging private providers to improve education results. on relative school quality, they can have the power to hold schools accountable and the voice to lobby Four policy goals to engage the private sector governments for better-quality services. For empowerment to work equitably, options for parents SABER-EPS collects data on four key policy areas that and students should not depend on wealth or student international evidence has found effective for ability. strengthening accountability mechanisms among citizens, policymakers, and providers (box 1). These 4. Promoting diversity of supply. By facilitating market entry for a diverse set of providers, governments can policy goals were identified through a review of rigorous increase responsibility for results, as providers become research and analysis of top-performing and rapidly directly accountable to citizens as well as to the state. improving education systems. The four policy goals enable a government to increase innovation and strengthen accountability among the critical actors in an education system (figure 2). Empowering parents, students, and communities enhances the ability of parents to express their voice and hold policymakers accountable for results. Additionally, when parents are empowered, in most contexts, they can have greater influence over provider behaviors. Increasing school accountability strengthens the quality- and equity-assurance mechanisms between the state and education providers. Encouraging innovation and promoting diversity of supply can allow providers to respond to local needs. Increasing school-level autonomy in critical decisions improves the services provided to students. Allowing a diverse set of providers to enter the market can increase client power and enable citizens to choose from a wider range of models. By developing these policy goals, a government can improve the accountability of all providers in an education system and, subsequently, have a positive impact on educational outcomes. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 4 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Figure 2. Relationships of accountability for successful service government or non-government providers or delivery both, depending on the system. SABER-EPS analyzes laws and regulations to: (1) identify the types of private engagement that are legally established in each country and (2) assess each education system’s progress in achieving the four policy goals. The aim of the SABER-EPS Framework is to provide policy guidance to help governments establish strong incentives and relationships of accountability among citizens, governments, and private education providers, with the goal of improving education results. Source: Adapted from World Bank (2003). SABER-EPS recognizes that the four policy goals outlined in box 1 can assist governments in raising accountability for the education services provided in their countries. The tool allows governments to systematically evaluate their policies and implement practices that are effective across multiple country contexts. Four types of private provision of education Across the world, governments can implement numerous strategies to improve educational outcomes by supporting non-state education provision. SABER-EPS benchmarks key policy goals across the four most common models of private service delivery: 1. Independent private schools: schools that are owned and operated by non-government providers and are financed privately, typically through fees. 2. Government-funded private schools: schools that are owned and operated by non- government providers, but receive government funding. 3. Privately managed schools: schools that are owned and financed by the government, but are operated by non-government providers. 4. Voucher schools: schools that students choose to attend with government-provided funding; these schools can be operated by the SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 5 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Benchmarking education policies: The The hypothetical country’s overall score for this policy goal would be: (2+3+4+4)/4 = 3.25. The overall score is SABER-EPS methodology converted into a final development level for the policy The World Bank has developed a set of standardized goal, based on the following scale: questionnaires and rubrics for collecting and evaluating x Latent: 1.00 – 1.50 data on the four policy goals for each type of private x Emerging: 1.51 – 2.50 school engagement established in a given country. x Established: 2.51 – 3.50 The policy goals are benchmarked separately for each x Advanced: 3.51 – 4.00 type of private engagement. A point of emphasis here is that these tools only assess official and established The ratings generated by the rubrics are not meant to policies governing private education provision. be additive across policy goals. That is, they are not Additional tools determine on-the-ground added together to create an overall rating for engaging implementation of these policies. The SABER-EPS the private sector. information is compiled in a comparative database that interested stakeholders can access for detailed reports, Use of the SABER-EPS Tool background papers, methodology, and other resources; the database details how different education systems SABER-EPS is not intended to be used as a prescriptive engage with the private sector. policy tool, but rather, as a tool to generate an informed assessment of a country’s policies vis- à-vis current For each indicator associated with the respective four knowledge about effective approaches. The results of policy goals, the country receives a score between 1 and this benchmarking exercise serve as a good starting point 4 (figure 3), representing four levels of private sector to discuss potential policy options that could be engagement: 1 (latent), 2 (emerging), 3 (established), or considered, based on the nuances of the local context 4 (advanced). and national education system. Education systems are likely to be at different levels of development across Figure 3. SABER Rubric: Benchmarking Levels indicators and policy goals. While intuition suggests it is probably better to be as developed in as many areas as possible, the evidence does not clearly show the need to be functioning at the advanced level for all policy goals. National education priorities lay at the center of recommended policy options; countries may prioritize higher levels of development in areas that contribute most to their immediate goals. For more information on the global evidence underlying EPS and its policy goals, see the SABER framework paper, What Matters Most for Engaging the Private Sector in Education (Baum et al. 2014). Source: Baum et al. (2014). The overall score for each policy goal is computed by aggregating the scores for each of its constituent indicators. For example, a hypothetical country receives the following indicator scores for one of its policy goals: x Indicator A = 2 points x Indicator B = 3 points x Indicator C = 4 points x Indicator D = 4 points. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 6 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Education in Nigeria—Lagos State1 Box 2. Decision-Making Powers at the Federal and State Government Levels Lagos State is one of the 36 federal units of the Federal Nigeria: Federal-Level Decision Making Republic of Nigeria. It has 20 local government areas and The Federal Ministry of Education is charged with: is located in the southwestern part of the country. The 1) Formulating a national policy on education. population of the state at 10 million, with 5.2 million 2) Education planning and financing. males and 4.8 million females (NBS 2009). Prior to the 3) Maintaining uniform standards of education throughout the country. relocation of the seat of government to Abuja in 4) Controlling the quality of education through its December 1991, Lagos was the administrative capital of Education Inspectorate. Nigeria. Lagos State is arguably the most economically 5) Harmonizing educational policies and procedures of all important state of the country, encompassing the city of states through the National Council on Education. Lagos, the nation's largest urban area. 6) Effecting cooperation in educational matters. 7) Developing curricula and syllabi. Over the last decade, Nigeria’s exponential population growth has put immense pressure on the country’s Lagos: State-Level Decision Making resources, already overstretched public services, and The Ministry of Education of the State of Lagos is one of infrastructure. Education policies are dictated by the the main stakeholders in the state education sector and is country’s federal political structure, in which federal, responsible for: 1) Overall development of education in the state. state, and local governments share responsibility. 2) Implementation of the basic childhood care. Consequently, administration of the education system 3) Development of primary and junior secondary devolves some power to state and local governments (box education through the State Universal Basic Education 2). Board (SUBEB). 4) Policy formulation and implementation. 5) Inspections of schools and technical colleges. The State Ministry of Education has a department responsible for regulation of private school: the Department of Private Education and Special Programs (DPESP). Another key agency has been established to enhance data management of the Lagos State education system. The Lagos State Government Education Management System (LASGEMS) was instituted by the state government to create a constantly updated source of administrative data on pupils (via student personal identification numbers) and schools. The system covers both public and private schools; in its early stage of implementation, the system has already compiled data on 11,000 schools at all levels throughout the state. Schools have been encouraged to register with and update their school information via the Internet. Sources: Nigeria 2004; Lagos State 2011b 1 benchmarking exercise fully capture the state of education at the time of This report presents country data collected in 2014 using the SABER-EPS data collection and analysis. The potential policy options may have policy intent data collection instrument. It thus offers a specific snapshot in diminished or have varying relevance, depending on current circumstances in time. Consequently, the overview of Education in Lagos as well as the Lagos and its education sector. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 7 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Education in Nigeria is regulated by the National Policy enrolment rate at the primary level declined from 66.1 on Education 2004, which applies to Lagos. Among other percent in 2004 to 58.6 percent in 2010, indicating a stipulations, the law requires all children to complete a negative trend. Statistics on the student survival rate to free and compulsory cycle of basic education, which the last grade of primary suggests, however, that the includes: education system has made some improvements over x pre-primary programs (ages 3 to 5) the same period, increasing from 72.9 percent in 2004 to 79.3 percent in 2009 (World Bank 2014)—albeit having x nine years of compulsory schooling consisting of first experienced a tremendous drop (figure 4). six years of primary school and three years of junior secondary school. Figure 4: Net National Enrolment Rate in Primary School, 2004–2010 Other legislation that specifically addresses the right of children to free and compulsory education in Nigeria 70 includes Child Right Act (2003) and the Universal Basic 65 Education Act (2004). Education service provision in the state is guided by 60 Lagos Education Law and Lagos State Compulsory Free 55 Universal Basic Education Law 2005, which reiterates the state government’s policy of providing free, compulsory 50 universal basic education for every child of primary and 45 secondary school age. The law places an obligation on parents to ensure that their children attend and 40 complete primary and junior secondary school. Failure of 2004 2005 2006 2007 2008 2009 2010 any parent to fulfill this duty amounts to a criminal Source: World Bank (2014). offence punishable by fine or imprisonment. The Act created both the Local Government Primary and Junior Despite years of intervention and educational provision, Secondary Education Authority, which is in charge of access to education remains a key challenge in Nigeria, implementation of education policy at the local with great disparities between urban and rural dwellers, government level, and the Universal Basic Education and between the rich and the poor. Inequities begin at Board, which is in charge of implementation of education the primary level: 87 percent of urban children of policy at the state level. primary age are in school, versus 62 percent in rural areas. In terms of access to education and the possibility The state government has made considerable progress in of completing primary education, 66.6 percent of expanding access to basic education. This commitment children from the poorest income quintile were out of to improving school access and quality is demonstrated school in 2008, compared to only 7.3 percent of children by the financial commitments that Lagos has made to from the richest quintile (figure 5). education. For example, the state allocated 14.7 and 13.2 percent of its budget to education in 2012 and 2013, respectively. The amount allocated to education was mainly targeted to improving the infrastructure in public schools, recruiting teachers to secondary schools, rehabilitating and procuring textbooks for public school libraries, and establishing e-library and ICT facilities (MEPB 2013). While there have been efforts to create legislation for and finance the educational sector in Nigeria as a whole, public expenditures on education as a share of the total federal budget decreased from 8.5 percent in 2012 to 7.9 percent in 2013 (UIS 2015). This decrease in government spending on education has impacted enrolment rates in Nigeria, a picture that differs from the situation in Lagos State. The net national SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 8 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Figure 5: Proportion of Out-of-School Children at the Primary Private Education in Lagos Level, by Quintile (2008) Private schools currently account for 75 percent of all enrolments in Lagos State, representing 1,314,623 Quintile 5 pupils, half of whom are girls (table 2). Clearly, the private sector is playing a crucial role in the provision of Quintile 4 basic education service in the state, helping closing the Quintile 3 gap created by an insufficient number of public schools. Table 2. Number of Enrolments by School Type Quintile 2 Number Percentage Quintile 1 Government 451,798 26% 0 20 40 60 80 Private unregistered 577,024 33% Source: World Bank (2013). Private registered 737,599 42% Lagos’ national ranking on the 2014 West African Total 1.766,421 100% Examinations Council (WAEC) exam reflects a drop from Sources: Census of Schools data 2011 and Lagos State Government (2004) second place in 2006 to seventh place in 2014. According to the 2014 preliminary test results, Lagos’ student body Only 3 percent of children aged 6–11 were out of school achieved a 45.9 percent pass rate. Furthermore, WAEC in Lagos State in 2010 (World Bank 2013), reflecting a data shows that the pass rate for female students was growing supply of basic education services that, in this higher than that of male students in several Nigerian case, can be attributed to private sector engagement. states (table 1). Despite this development, about 42 percent of private schools operating in Lagos state are unapproved; the Table 1. 2014 WAEC Test Results in Anambra, Lagos and Ekiti numbers of such schools are, moreover, increasing States2 rapidly (table 2). The most common type of private Anambra Lagos Ekiti school is a neighborhood “nursery primary school” run by a sole proprietor and usually operating without the Total Pass rate 65.92 45.86 33.80 approval of the state government. These schools serve, Current ranking (Out of 1 7 12 on average, 109 pupils from the immediate vicinity of the 36 states) school location (Härmä 2011). Previous ranking (2006) 10 2 29 The study of low-cost private schools in Lagos State has sparked an extensive debate in the literature (Härmä Male pass rate 65.13 45.1 31.39 2011; Tooley, Dixon, and Olaniyan 2005; Adelabu and Female pass rate 66.56 46.6 36.31 Rose 2004). One of the main reasons for the growth in Source: Adapted by authors from preliminary WAEC 2014 results. the number of such schools lies in the perceived failure of the government to provide an adequate supply of education services (Härmä 2011). Some studies have argued that these low-cost schools are more cost effective in terms of delivering basic education. In fact, most are unregistered due to the cost of registration and registration renewal, which is much higher in Lagos State compared to other states (Adelabu and Rose 2004). The state government could thus implement better policies for creating private schools and facilitate the market entry of other non-state education providers, thereby 2 based on government consultations and to complement the World Bank The three states of Anambra, Ekiti and Lagos are compared in this table as Education Sector portfolio of lending and analytical work. these were the three states selected for the first phase of SABER-EPS analysis SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 9 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 meeting the rising demand for education in a context of acute demographic pressure (table 3). Table 3. Cost of Registration and Registration Renewal of Non-State Schools in Abuja, Lagos, and Enugu States (Nigerian naira, ₦) Abuja Lagos Enugu Name search 0 5,000 0 Purchase of 40,000 15,000 2,000 form Pre-inspection 0 5,000 0 Approval N/A 25,000 5,000 15,000– 2,000– Annual renewal 10,000 100,000 3,500 Source: Adelabu and Rose (2004). Lagos State guidelines on the establishment and operation of private nursery, primary, secondary and vocational/remedial schools spell out the role of private education providers and outlines all legal requirements for the operation of such schools in the state. The guidelines empower the State Commissioner of Education to regulate and supervise the operation of private schools in the state. The Guidelines for the Establishment of Private Schools of Lagos State (2011) is a mechanism for improving the supervision of private schools in the state. The policy spells out periodic review guidelines, introduces online registration for private schools, requires the State government to meet periodically with the association of private schools, and creates an annual award for outstanding private school (Lagos State Ministry of Education 2011b). SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Benchmarking Lagos’s Private Schools Box 3. International Best Practice – Encouraging Innovation by Providers This section of the report presents the results of SABER- The following decisions/processes are made at the school Engaging the Private Sector analysis of laws, policies, and level: regulations governing independent private schools. The x Establishment of teacher qualification standards. report discusses the benchmarking results against the x Appointment and deployment of teachers established recommended practices. For more x Teacher salary levels information on the global evidence underlying these x Teacher dismissals policy goals, see the SABER framework paper, What x The way in which the curriculum is delivered Matters Most for Engaging the Private Sector in x Class-size decisions Education (Baum et al. 2014). x Management of the operating budgets The main policies, laws, and official documentation used to evaluated private sector engagement in the education Development level: system in Lagos include the following: x Guidelines for Public and Private Schools in Lagos Effective provision requires that schools be given State decision-making power over the factors that have shown x Guidelines on the Establishment and Operation to be important in delivering high-quality education. In of Private Nursery, Primary, Secondary and Lagos, education policies allow for a high degree of Vocational/Remedial Schools in Lagos State school-level autonomy in independent private schools. x National Policy on Education (2004) Based on current policies, laws, and other official x Child Right Act (2003) documentation in Lagos, private schools are rated Advanced. x Universal Basic Education Act (2004) Education policies in Lagos State allow for a high degree Goal 1: Encouraging innovation by providers of school-level autonomy over resources. There are no The highly particular and contextualized nature of policy restrictions, for example, on the setting of teacher education delivery necessitates decision making at the wages; these decisions are made at the school level. school level. To be aware of and adapt to changing However, the regional government establishes requires student needs, school leaders require autonomy over class sizes for private schools. According to Section 10 of the most critical managerial decisions. the Guidelines for the Establishment of Private Schools in Lagos State, “The School shall employ adequate The methodologically rigorous studies assessing the number of teachers at all times to cater for pupils, and impacts of local school autonomy on student learning the ratio of teacher to pupils per class shall be 1:25 in the outcomes generally find a positive relationship nursery, while it shall not be more than 1:35 for both (Hanushek and Woessmann 2010; Bruns, Filmer and primary and secondary levels.” Patrinos 2011). A few studies find evidence that local autonomy for school leaders is associated with increased Private schools also have a high degree of autonomy with student achievement, as well as reduced student respect to key personnel decisions. Private schools are repetition and failure rates (King and Özler 2005; Jimenez free to appoint and redeploy teachers and are allowed to and Sawada 2003; Gertler, Patrinos, and Rubio-Codina dismiss teachers, as needed, without restrictions. 2012). However, the state government does set minimum educational requirements for teacher, which are not reviewed by the national government. Section 10 of the Guidelines for the Establishment of Private Schools in Lagos State thus requires staff to be professionally qualified with official teacher-training diplomas. Private schools do not have authority over the school curriculum, but must adhere to the prescribed national curriculum. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 11 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Table 4. Goal 1: Encouraging Innovation by Education Goal 2: Holding schools accountable Providers On average, students perform better in schools with Item Score Justification higher levels of accountability to the state Schools must comply (Abdulkadiroglu et al. 2011; Carnoy and Loeb 2002; Who has legal authority with regionally Woessmann et al. 2007; Hanushek and Raymond 2005). to set teacher standards established teacher For non-state providers, when government funding is Established (e.g., teaching educational certification, years of €€€{ standards, which are tied to accountability standards, schools are incentivized experience, etc.)? not reviewed by the to perform more efficiently (Barrera-Osorio and Raju central government 2010; Patrinos 2002). A strong accountability system requires that the government, parents, and educational Legal authority to professionals work together to raise outcomes. The appoint and deploy Who has legal authority teachers is vested in government must play a role in ensuring that superior Advanced to appoint and deploy the school; state education quality is delivered by schools. SABER-EPS teachers? €€€€ policy does not assesses multiple policy indicators to determine non- restricts private state provider accountability. A list of the key indicators schools in this area. is provided in box 4. State policy allows Box 4. International Best Practice–Holding Schools Who has legal authority private providers to Accountable Advanced to determine teacher set teacher wages salary levels? €€€€ without any legal x The central government sets standards regarding restrictions what students need to learn, including deadlines for meeting these standards. Private schools are x Students are required to take standardized Who has legal authority Advanced free to dismiss their examinations; exam results are disaggregated by to dismiss teachers? €€€€ own teachers school, socioeconomic status, gender, etc. State government has x Schools are required to report on the use of public the legal authority funds as a condition of continued funding. Who has legal authority over x The central government or an external agency Latent to determine how the how the curriculum is performs school inspections as determined by school curriculum is delivered? €{{{ delivered and schools need. must adhere to the x Schools produce school improvement plans. national curriculum x School performance is tied to sanctions and/or State policy and laws rewards. Who has legal authority establish class sizes, Established to determine maximum which do not require class size? €€€{ central government approval Development level: The policies of Lagos State for independent private Based on the rubric scores for the encouraging scholars are rated Emerging. innovation by providers indicators, the suggested policy options for Lagos state private schools include: According to Article 7 (a) of the Guidelines for Public and Private Schools in Lagos State, “[T]he curriculum shall be x Allow private schools to tailor the curriculum to geared towards achieving the State Government Policy meet the needs of the local community, once on curriculum for all aspects and levels.” Furthermore, capacity within schools meets a minimum quality Article 7(f) adds, “Schools and institutes shall provide for standard, that is monitored and verified in a continuous assessment of their pupils/students.” clear regulatory environment. Article 10 of the Guidelines for Public and Private Schools in Lagos State stipulates that school inspection procedures will not adhere to a specific calendar, but that “periodic inspection, monitoring and supervision” will be conducted by the State Ministry of Education SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 12 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 (MoE) Quality Assurance (QA) Department, or the school Table 6. Goal 2: Holding Schools Accountable inspectorate. Score Justification Part 3 of the Guidelines for Public and Private Schools in Does the government The government sets Lagos State describes the mechanism for grading schools set standards on what standards on what in the state. However, the guidelines do not specify the Established students need to learn student need to learn periodicity of these inspections. School grading is part of and by when? €€€{ and when the inspection process. The guidelines also indicate that strengths and weaknesses be included in the inspection What is the current Emerging Standardized exams are policy on standardized administered, but not follow-up, as shown in the following table of school €€{{ annually. exams? grades. Table 5. School Grades Determined by Inspections Does the government Emerging The government require schools to requires schools to Grade Description €€{{ undergo an undergo an inspection, inspection? but not on a regular A Schools providing an education that adheres to timetable best national and international practices. These are leading state, federal, international, and Does the inspection Emerging Inspection reports private schools whose students excel in national report outline the include limited €€{{ and international curricula. strengths and information on the weaknesses of the strengths and B Schools that provide a sound education to a broad school? weaknesses of the range of students and have adequate school infrastructure and resources. These schools follow Are sanctions Established Sanctions are the national Nigerian curriculum. enforced based on administered based on €€€{ C Low-cost schools that provide a functional inferior results of the results of school school inspections or inspection education to low-income communities, whose standardized exams children are often within walking distance of their respective school. Annual fees (tuition, etcs.) may Based on the rubric scores for the holding schools not exceed ₦50,000. This figure may be adjusted accountable indicators, the suggested policy option for periodically in line with economic factors in the Lagos State with respect to private schools include: state. x To raise the accountability of private schools, Article 19 of the Guidelines for Public and Private Schools Lagos State could ensure that inspections are in Lagos State underlines that an inspection can result in focused on schools that need the most scrutiny. the closure of school by the State Education This means revising inspection procedures so Commissioner “if/when any of the existing guidelines that inspections happen consistently and that and regulations is contravened”. underperforming schools are visited more frequently and high-performing schools only inspected on a longer-term basis. Goal 3: Empowering all parents, students, and communities Empowering parents, students, and communities is one of the foundations for creating quality learning opportunities for all students. Poor and marginalized children, together with youth, disproportionately lack access to quality education services. To overcome this obstacle, governments need to increase providers’ accountability to all clients, particularly underserved groups. Educational access and the performance of schools and students can be substantially impacted by openly disseminating comparable school performance SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 13 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 information (Andrabi, Das, and Khwaja 2009; Pandey, of inspection services, teacher development schemes, Goyal, and Sundararaman 2009; Björkman 2007; equipment provision, testing of children, state-funded Reinikka and Svensson 2005); increasing parental research, and technical and operational support. This influence in the school (Skoufias and Shapiro 2006; King type of government may affect families, but only and Özler 2005; Jimenez and Sawada 1999; Gertler, indirectly. Patrinos, and Rubio-Codina 2012; Di Gropello and Table 7. Goal 3: Empowering All Parents, Students, and Marshall 2005); and implementing demand-side Communities interventions, such as scholarships, vouchers, or cash transfers, to help the most vulnerable students (Orazem Score Justification and King 2007; Filmer and Schady 2008; Lewis and Does the government Ad-hoc information is Lockheed 2007; Patrinos 2002; Barrera-Osorio 2006). give parents/students Emerging provided to parents on access to performance standardized exam Effective policy practices for non-state providers include €€{{ data on the quality of results and inspection some of the indicators listed in box 5. available schooling? reports Box 5. International Best Practice—Empowering All Parents, Students, and Communities Are students and/or Neither students nor parents interviewed Emerging parents are surveyed as x Information on standardized tests and school as part of the part of the inspection €€{{ inspections is made available by multiple sources. inspection process? process x Parents and students are included in the inspection and improvement-planning processes. Does the government The government does x Admission processes for entry into publicly funded provide tax subsidies not provide tax subsidies or cash transfers t Latent schools are not based on student background; a to families whose families whose lottery is used in cases of oversubscription. €{{{ children attend private children attend x School choice is not hindered by mandatory financial private schools? schools contributions. x Tax subsidies, scholarships, or cash transfers are Based on the rubric scores for the empowering all available to families whose children attend parents, students, and communities indicators, the independent private schools suggested policy options for Lagos State with respect to private schools include: x Make inspection reports and information on the Development level: quality of schooling at individual grade levels As shown above, the policies in Lagos State toward available to parents, students, and communities. independent private schools to empower parents, This information should be accessible through a students, and communities are rated Emerging. variety of sources to allow for clear, transparent Additional policy strategies are needed to increase the information flows especially to students and client power of parents and better enable them to hold parents. providers accountable for results. x Lagos State Government could empower poorer households at a relatively low cost by targeting Article 21(d), (e), and (f) of the Guidelines for Public and resources in the form of vouchers or conditional Private Schools stipulate that school performance cash transfers to less affluent families, enabling information must be available to parents on the website them to access quality education services. of the State Ministry of Education. Information may also be advertised by the school: “. . . included on their notice boards, letter headed-paper, and other external branding documents and artifacts.” State policies do not, however, stipulate that parents and students should be part of the inspection process. The state also does not provide any support to families whose children attend private schools. Article 20 of the aforementioned Guidelines only states that the Ministry of Education provides support to private schools in terms SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 14 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Goal 4: Promoting diversity of supply Development level: By opening education to a more diverse set of providers, governments can increase client power and make The policies in place to promote diversity of supply for providers directly accountable to students and parents independent private schools and government-funded for results. Although the public sector will always remain private schools in Lagos State are rated Established, an important (and, in most cases, the predominant) which indicates some instances of good practice. provider of education services, educational choice can be Private independent schools set their own tuition fees, used as part of a package of reforms to improve but their fees are subject to review by the state education access and quality in both the public and government. Indeed, Article 16(e) of the Guidelines for private sectors (Hoxby 2003; Levin and Belfield 2003; De Public and Private Schools in Lagos State states, “[T]he la Croix and Doepke 2009; Carnoy and McEwan 2003; Honorable Commissioner of Education may give official, Himmler 2007; Angrist et al. 2002; World Bank 2003). In general, or specific directives on approved fees, as may order to facilitate quality improvements through be deemed fit.” Furthermore, point 16(c) adds that increased school competition and choice, governments schools are not allowed to raise their fees during an can (i) allow multiple types of providers to operate; academic year. The state government also allows both (ii) promote clear, open, affordable, and unrestrictive non-profit and for-profit providers to operate private certification standards; and (iii) make government schools. funding (and other incentives) available to non-state schools. This policy goal aims to increase the ability of Article 5.2 of the aforementioned Guidelines outlines the diverse providers to provide education services. In order requirements for creating a primary school: to do so, a number of policy indicators are suggested, as x A minimum land requirement of 18 meters by 36 outlined in box 6. meters. Box 6. International Best Practice–Promoting Diversity of x A school Master Plan that clearly indicate the Supply location of classrooms and other facilities, x The central government allows different types of including offices. providers to operate schools. x A purpose-built structure that contains: a head x Certification standards do not prohibit market entry. teacher’s office, a staff room, a library, a x Information on market-entry requirements is available minimum of six classrooms, toilets (one staff from multiple sources. toilet and at least one toilet per classroom), and x Regulatory fees do not prohibit market entry. a regular water supply. x Publicly funded non state schools and public schools receive equivalent student funding; funding is x Open spaces on school premises for sports, increased to meet specific student needs. recreational, and other approved purposes. x The central government provides incentives for x First-aid facilities and/or an adequately market entry, such as access to start-up funding, equipped sick bay affiliated with a government- public land, and public buildings. approved hospital close to the school. x Schools are able to plan budgets six months in advance of the academic year. x Standard classrooms with average floor space of x Privately managed schools are not restricted by 1.2 square meters per student. Pro-rated floor student numbers, school numbers, or location. space may be applied where classes contain x The central government does not restrict tuition levels fewer or greater numbers of students. at private independent schools. x Well- lit and ventilated classrooms, each with two doors and four windows. x Classroom furniture consisting of desks, benches or tables, and chairs adequate in size for the age of the pupils. x Suitable teaching aids, together with sports and games equipment. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 15 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 x Adequate fire-fighting and other emergency Table 8. Goal 4: Promoting Diversity of Supply equipment in all buildings that are maintained at Score Justification a functional level at all times. Does the government Established Schools set fees, but x Certification of Buildings and premises by the set standardized their fees are subject to State Ministries of Physical Planning and Urban tuition fees? €€€{ state government review Development and of Education. For-profit and non-profit Article 5.3 of the same Guidelines outlines the Are all types of Advanced providers, including providers allowed in international providers, requirements for creating a secondary school which €€€€ the market? are allowed to operate include, but are not limited to: private schools x A minimum land requirement of 18 meters by 36 Certification standards meters. not linked to education outcomes restrict market x Standard classrooms with average floor space of Are there minimum entry, including such 1.2 square meters per student. A pro-rated floor standards for criteria as: Emerging space may be applied where classes contain registration or for €€{{ - land (specific distance fewer or greater numbers of students. schools to be allowed from public venues, etc.) to operate? x In schools that offer technical subjects, - facilities (separate adequately equipped woodwork, metalwork, science labs, weather electronics, auto mechanics and/or building vanes, etc.) workshops with a floor area of 140 square Are there clearly meters, or an average of 4 square meters per publicized guidelines Registration/certification student. by multiple sources Established guidelines are made outlining the €€€{ public, but only by a x Where possible, specialist rooms of 70 square requirements for single source meters (or 2 square meters per student) for school registration? geography, technical drawing, fine art, business studies, computer studies, and home-related Are schools able to Latent Schools may operate subjects (i.e., food, nutrition, home operate without only if they pay several paying fees? €{{{ fees management, clothing/textiles). x A large hall for assemblies, school and public Based on the rubric scores for the promoting diversity of events, and examinations. supply indicators, the suggested policy options for x A regular water supply and at least eight water Lagos’ independent private schools include: closet toilets. In mixed-sex schools, female-only toilets must be provided in the ratio of 2:1 to x Ease private school registration criteria on male toilets. school infrastructure, land, and capital so that x First-aid facilities and/or an adequately the private education market can expand access equipped sick-bay affiliated with a government- to recognized, quality-assured education. approved hospital close to the school. x Fire control equipment in line with the regulations of the State Fire Service Department: at least 5 fire extinguishers per school. x Adequate property fencing and gates. Furthermore, according to a U.S. Department for International Development (DFID) study, non-state schools in Lagos state are able to operate only when they have paid certain required fees (Adelabu and Rose 2004). Indeed, the table below outlines the fees that schools are required to pay to operate. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 16 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 From Analysis to Action: Policy Options for include criteria such as ownership of land, buildings, and different types of equipment that prevent new schools Lagos from entering the market, yet these criteria do not have While private schools currently account for 75 percent of a direct bearing on learning outcomes. all enrolments in Lagos State, 33 percent of these schools In Lagos, registration criteria are extensive for both remained unregistered. This represents a great gap in the primary and secondary private schools. Furthermore, government’s knowledge of and ability to report on the non-state schools have to pay five types of fees to be able volume of education provision in the state. This SABER- to operate: name search, purchase of forms, pre- EPS study of the policies currently applied in Lagos State inspection, approval, and annual registration renewal. underlines the gap between registered and unregistered The state could ease its criteria for land and facilities, private schools. The very fact that education is while remaining strict about regulations that predominantly provided by the non-state sector should international evidence confirms contributes to and encourage the state to adopt legislation to improve the improves learning outcomes, to support the market quality of non-state education provision. entry of a more diverse set of providers, thereby Based on the results of this benchmarking exercise, and increasing school numbers and education provision. recognizing the evidence outlined in this paper, the Country example: following policy options are recommended for the private school sector in Lagos State: In the UK, the government clearly outlines guidelines for creating a new publicly funded, privately managed 1. Support market entry of new private schools by school, known as a Free School. A separate easing criteria for school registration. nongovernmental organization, the New Schools 2. Improve the quality of learning outcomes by Network, was also established to provide advice and strengthening the inspection system to target guidance on how to successfully do so (UK DfE 2014). those schools that need the most support on a Policy Option 2: Improve the quality of regular basis and encouraging continuous improvement through school improvement learning outcomes by strengthening the plans. inspection system to target those schools that need the most support on a regular basis and 3. Increase the information on private schools encouraging continuous improvement made available to parents and provide financial through school improvement plans support to families whose children attend private schools. Strong accountability systems consist of more than minimum standards; they also require mechanisms to These policy options are supported by international continually improve school performance. A review of evidence, best practice, and the experience of countries quality assurance and school monitoring systems across that have used innovative interventions to improve eight Asian Pacific countries found that a number of private sector engagement in their education systems countries go beyond basic minimum standards and from a variety of starting points. effectively use accountability mechanisms to ensure continual improvement (Mok et al. 2003). The Office for Policy option 1: Support market entry of new Education Standards in Education (Ofsted) in England, private schools by easing criteria for school the Education Review Office in New Zealand, and the registration National Inspectorate in the Netherlands have all moved Recommendation 1: Ease registration criteria for to a risk-based inspection approach, which allows private schools schools that are performing well and continually improving to undergo less frequent inspections, while By facilitating the market entry of a more diverse set of providers, governments can increase their responsibility schools performing below standard are inspected more for results, as providers subsequently become directly frequently and rigorously (Onderwijs Inspectie 2010). accountable to citizens and the state. To do so, a This approach reinforces accountability relationships at conducive regulatory environment is needed to promote two levels: it provides autonomy to superior performers a diversity of supply. Certification standards in Lagos and targets accountability to schools in greatest need. An SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 17 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 effective inspection process, including appropriate In Brazil, a Ministry Plano de Desenvolvimento da Escola follow-up, can be an important means of school (PDE) project required schools to identify their most improvement. Inspection frameworks should outline the serious problems and develop their own school strengths and weaknesses of schools as well as priorities improvement plans. PDE also required the schools to for improvement. Improvement planning can facilitate focus their plans on two or three effectiveness factors positive change as a school strives to deliver better (EF), one of which had to be effective teaching and educational outcomes for all students. Sanctions and learning. Schools could chose the remaining EFs from a rewards can then be used to reinforce the accountability list of general areas detailed in the PDE manual. Students mechanism. in PDE schools saw greater increases in passing rates than did students in non-PDE schools (Carnoy et al. Strengthen the school inspection system to target 2008). schools with the greatest need for support and monitoring Policy option 3: Increase information School inspections should be conducted according to a availability for parents and provide standard schedule and should be more closely linked to financial support to families whose school improvement plans. To raise the accountability of private schools, Lagos State could ensure that children attend private schools inspections are focused on schools that need greater Increase information provided to parents scrutiny. The inspection schedule could be revised so Based on its current policies, Lagos could increase the that underperforming schools are visited more information provided to parents on school quality. frequently, while high-performing schools are inspected Central governments ought not be the only monitors of only on a longer term basis. This would effectively mean school performance. Access to comparative information that there would be two inspection schedules: one for could enable parents and students to influence school high performing schools (less frequent) and one for quality through increased choice and direct voice to schools requiring additional support. providers. School report cards, for example, can provide Use school improvement plans to improve education information in one place and allow parents to easily quality compare schools in their area.This information usually includes school demographics, classroom assessment School improvement plans have been an important piece results, examination results, and inspection reports. of successful education programs in developing Evidence from Pakistan shows that school report cards countries (Bruns, Filmer, and Patrinos 2011). The improved learning by 0.1 standard deviations and introduction of school improvement plans must, reduced fees by almost 20 percent. The largest learning however, be accompanied by the empowerment of gains (0.34 standard deviations) were initially achieved school leaders so that they can facilitate change. School by low-performing (below median baseline test scores) leaders must ensure that improvement plans are private schools, with the worst of these schools likely to meaningful to all stakeholders and that purposeful close (Andrabi 2009). actions are taken to fulfill throughout a school (Fullan 2007). In Lagos, a mechanism could be created to inform Country examples: communities about the results of private independent schools in terms of school results and performance, The government of the Western Cape, South Africa, inspection actions, as well as other information of requires schools to submit individual school interest to parents and communities. This space could improvement plans. Particular attention is given to those also be a forum for discussions where stakeholders could schools that did not achieve the required pass rate on exchange experiences and opinions on the performance state examinations. Following this practice, the number of private schools. of underperforming schools has declined every year, from 85 in 2009 to 26 in 2012 (Western Cape Government 2013). Western Cape is also cited in a study that examined how most-improved schools continue to improve (Mourshed 2010). SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 18 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Country examples: local women’s self-help group meetings (CfBT 2013). (For more information on CERCA School Report Cards visit: Parana State in Brazil was an early adopter of school http://bit.ly/CERCAcards.) report cards. Between 1999 and 2002 report cards were introduced to inform school communities and stimulate Target subsidies to low-income households greater involvement in the school improvement process. Lagos State Government could empower poorer The cards were disseminated to a wide range of households at a relatively low cost by targeting resources stakeholders, including all schools, PTAs, municipal in the form of vouchers or conditional cash transfers to education authorities, and all 70,000 state education less affluent families, enabling them to access quality employees (including 46,000 teachers). Overall results education services. were reported in the state education secretariat’s monthly newsletter, used in teacher and PTA workshops, Country examples: and disseminated via press releases and press Andhra Pradesh, India has a population of approximately conferences (EQUIP2 2013). 85 million and a rural poverty incidence of approximately In the Dominican Republic, El Salvador, Guatemala, 20 percent. A voucher program was implemented in five Honduras, and Nicaragua, a USAID-funded program— districts of the state, with students allocated to schools Civic Engagement for Education Reform in Central based on a lottery. The cost of a voucher to private America (CERCA)—implemented a school report card schools was one-third of the cost of delivering the same that focused on indicators in four areas: education in public schools. This cost difference was due 1. Context: basic profile information (number of to lower teacher salaries, albeit was offset by the fact students in each grade, etc.) and access to that private schools hire more teachers and have smaller services at the school (e.g., sanitation, class sizes and less multigrade teaching. Unannounced electricity, etc.) visits also showed that private schools had a longer school day, a longer school year, a lower teacher absence 2. Inputs: class size, access to resources (e.g., rate, enhanced teaching activity, and better school notebooks, pens, etc.), and access to social hygiene. After two years, student outcomes—as services (e.g., school meals, health programs, measured by the average score across all subjects— etc.) showed that voucher recipients scored 0.13 standard 3. Processes: student and teacher attendance, deviations higher than those who did not receive a school plan implementation, and parent voucher. Students who attended private voucher schools participation scored 0.23 standard deviations higher (Muralidharan 4. Results: coverage and efficiency (i.e., student and Sundararaman 2013). repetition and retention rates) In Pakistan, the Punjab Education Foundation’s Assisted The results of the school report card are now used by Schools (FAS) program provides monthly per-student communities to develop and monitor implementation of cash subsidies and free textbooks to low-cost private school action plans (CERCA 2006). schools. The program grew exponentially from 8,573 students and 54 schools in 2005 to over 1 million In Andhra Pradesh, India, the Vidya Chaitanyam students and 3,000 schools in 2012. Participation in the intervention used citizens to monitor and advocate for program requires that schools achieve a minimum higher-quality service delivery by both government and student pass rate on a semi-annual multisubject exam, non-government basic education providers. The project the Quality Assurance Test (QAT). At least two-thirds of was intended to strengthen the oversight function in the tested students must score above 40 percent on the state due to a lack of capacity on the part of local QAT. If a school fails to achieve the minimum pass rate education offices, whose responsibility is to carry out on two consecutive QATs, it is permanently disqualified school inspections. The program used members of from funding. A rigorous evaluation of the program women’s self help groups, who were often illiterate or found that the threat of program explusion had a positive semi-literate, to assess the quality of basic education causal impact on student learning. Schools threatened provision through the use of school scorecards. The with losing access to subsidies were nearly always results of the scorecards were shared with district successful in raising student scores to meet the minimum officials, local School Management Committees, and pass rate on subsequent exams: where only 49 percent SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 19 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 of schools in the study met the minimum pass rate in November 2007, nearly 100 percent of these same schools met it in March 2008. The program also offers two cash bonus benefits. The first is a teacher bonus for superior school performance on the QAT. Once every academic year, a maximum of five teachers in each program school where at least 90 percent of students in tested classes obtained a score of 40 percent or higher on the QAT receive an award of 10,000 rupees (US$ 118) each. The second cash bonus is a competitive school bonus for top school test performance. Once every academic year, the program school in each of the seven main program districts that has the highest share of students with a score of 40 percent or higher on the QAT is awarded 50,000 rupees (US$ 588) (Barrera-Osorio and Raju 2010). SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 20 LAGOS, NIGERIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2014 Acknowledgments Africa, Latin America, and Asia. Washington, DC: World Bank. This SABER-EPS country report was prepared by Barrera-Osorio, F., and D. Raju. 2010. Short-Run Learning Abubakar Tata Inuwa. Critical guidance was provided by Dynamics under a Test-Based Accountability Donald Baum and Hugo Wesley. Further inputs and System: Evidence from Pakistan. World Bank Policy editorial support were provided by Minju Choi and Oni Research Working Paper 5465. Human Lusk-Stover. The report was prepared in consultation Development Network, World Bank, Washington, with the Government of Nigeria. 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SABER aims to give all parties with a stake in educational results—from students, administrators, teachers, and parents to policymakers and business people—an accessible, detailed, objective snapshot of how well the policies of their country's education system are oriented toward ensuring that all children and youth learn. This report focuses specifically on policies in the area of engaging the private sector in education. This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 1