MAURITANIA SABER Country Report Engaging the Private Sector in Education 2016 Policy Goals for Independent Private Schools Status 1. Encouraging Innovation by Providers In the absence of policy, independent private schools have authority to determine salary levels, to dismiss teachers and to set teacher standards. The school also has legal authority to appoint, deploy, and dismiss teachers, as well as to determine how curriculum is delivered. The government has set class size to a maximum of 50 students. 2. Holding Schools Accountable The government sets standards for what students need to learn for independent private schools, but there is no indication of when or how well. A standardized examination is set only for entry into the first grade of the secondary level. No other exams occur during other grades for this type of schools. Policy dictates that schools be inspected regularly but the term is not specified. 3. Empowering All Parents, Students, and Communities Parents have the right to be informed and participate in the functioning of the school. However, schools only provide ad-hoc information on examination results. Regarding the inspections, neither students nor parents are interviewed as part of the process. Schools are allowed to select students based on geography. 4. Promoting Diversity of Supply The government allows all of the following provider types to operate a school: not-for-profit, faith-based and for profit. Certification standards regarding land and facilities restrict entry of new schools into the market. Policy Goals for Government-Funded Private Schools Status 1. Encouraging Innovation by Providers In the absence of policy, government-funded private schools are able to determine salary levels, to dismiss teachers and to set teacher standards. The school also has authority to appoint, deploy, and dismiss teachers, as well as to determine how curriculum is delivered. 2. Holding Schools Accountable There is no existing legislation on setting standardized examinations and schools can apply their own rules on a case-by-case basis. There is no regulation which mandates that government-funded private schools be subject to inspection. No sanctions can be administered to these types of schools based on either examination or inspection results. 3. Empowering All Parents, Students, and Communities Parents have the right to be informed and participate in the functioning of the school. However, schools only provide limited information on examination results. Schools have to prioritize enrolment of children whose parents live in the immediate vicinity. Furthermore, parental choice is restricted by compulsory monetary contributions from parents which, if not paid, prohibit the child from attending the school. 4. Promoting Diversity of Supply The government allows all the following types of organizations to operate a school: not-for-profit, faith-based, and for-profit. Certification standards regarding land and facilities prevent diversity of supply. Schools are given information on their allocations between 4 and 6 months before the start of the academic year. MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Table of contents Introduction ............................................................................................................................................................................ 2 Overview of SABER-Engaging the Private Sector .................................................................................................................... 3 Education in Mauritania.......................................................................................................................................................... 6 Private Education in Mauritania ............................................................................................................................................. 9 Benchmarking Mauritania’s Private Schools ........................................................................................................................ 10 Goal 1: Encouraging Innovation by Providers ................................................................................................................... 10 Goal 2: Holding Schools Accountable ............................................................................................................................... 11 Goal 3: Empowering all Parents, Students, and Communities ......................................................................................... 13 Goal 4: Promoting Diversity of Supply .............................................................................................................................. 15 From Analysis to Action: Policy Options for Mauritania ....................................................................................................... 17 Policy option 1: Establish a regulatory framework for Government-funded private schools and increase accountability .......................................................................................................................................................................................... 18 Policy Option 2: Ensure information is easily accessible to parents and prohibit schools from using inequitable entrance selection criteria for students ........................................................................................................................................... 19 Policy Option 3: Providing greater incentives to support a diverse number of private school providers........................ 20 Acknowledgements............................................................................................................................................................... 22 Annex I: SABER-Engaging the Private Sector Rubrics............................................................................................................ 25 1 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Introduction framework, a product of the World Bank’s Systems Approach for Better Education Results (SABER). SABER In recent years, private sector engagement in education collects and analyzes policy data on education systems —which includes a vibrant mix of non-profit, for-profit around the world, using evidence-based frameworks to and faith-based organizations—has grown significantly highlight the policies and institutions that matter most to around the world. In the last two decades, the promote learning for all children and youth. percentage of students in low-income countries attending private primary schools doubled, from 11 SABER-EPS research in Mauritania found that despite percent to 22 percent (figure 1). This growth in private impressive gains in increasing enrollment and achieving provision is closely connected to the boom in access that gender parity at the primary level, access to post-primary has taken place in low-income countries over the same schooling remains low, and ensuring equity in education two decades: primary net enrolment increased from 55 is a challenge. School providers in Nepal include percent to 80 percent between 1990 and 2010. institutional schools, which are private, and community schools that receive government funding. Detailed As countries redouble their efforts to achieve learning information on institutional and community schools are for all at the primary and secondary levels, the private provided in this report. Families have increasingly chosen sector can be a resource for adding capacity to the to enroll children in private institutional schools, and education system. By partnering with private entities, learning outcomes stand to improve across the the state can provide access to more students, education system. Based on a review of existing policies particularly poor students who are not always able to SABER-EPS offers the following recommendations for access existing education services (Pal and Kingdon 2010; Mauritania to enhance private sector engagement in Patrinos, Barrera-Osorio, and Guáqueta 2009; Hossain education to meet the challenges of access, quality, and 2007). Additionally, evidence shows that governments equity: have been successful at improving education quality and student cognitive outcomes in many countries through effective engagement with private education providers 1. Improve the regulatory environment to support (Barrera-Osorio and Raju 2010; French and Kingdon a greater supply of post-primary schools in 2010; Barrera-Osorio 2006). underserved areas. 2. Strengthen accountability measures, including regularly collecting and disseminating Figure 1. Private enrolment as a percentage of total comparable information on school performance, primary enrolments, by country income level while increasing school autonomy. Low-income countries 3. Consider providing additional support to poor and marginalized students attending independent schools and post-primary schooling. The rest of the report provides an overview of SABER- Middle-income countries EPS, followed by a description of the basic education system in Mauritania, with a focus on the private sector and government policies related to private provision of High-income countries education. The report then benchmarks Mauritania’s policy environment utilizing the SABER-EPS framework, and 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 Mauritania engage the private sector in basic (primary and secondary) education. The analysis draws on the Engaging the Private Sector (EPS) 2 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Overview of SABER-Engaging the Private education system and, subsequently, have a positive impact on educational outcomes. Sector Box 1. Key Private Sector Engagement Policy Goals In many countries, the extent and activity of the private sector in education is largely undocumented and 1. Encouraging innovation by providers. Local decision unknown. SABER-EPS is working to help change that. making and fiscal decentralization can have positive SABER-EPS assesses how well a country’s policies are effects on school and student outcomes. Most high- oriented toward ensuring that the services of non-state achieving countries allow schools autonomy in managing resources (including personnel) and providers promote learning for all children and youth. educational content. Local school autonomy can improve the ability of disadvantaged populations to The aim of SABER-EPS is not to advocate private determine how local schools operate. schooling. The intention is to outline the most effective evidence-based policies specific to each country’s 2. Holding schools accountable. If schools are given autonomy over decision making, they must be held current approach toward non-state provision of accountable for learning outcomes. Increases in education. SABER-EPS assesses the extent to which autonomy should be accompanied by standards and policies facilitate quality, access, and equity of private interventions that increase access and improve quality. education services. Data generated by SABER-EPS can The state must hold all providers accountable to the further the policy dialogue and support governments in same high standard. engaging private providers to improve education results. 3. Empowering all parents, students, and communities . When parents and students have access to information on relative school quality, they can have the power to Four policy goals to engage the private sector hold schools accountable and the voice to lobby SABER-EPS collects data on four key policy areas that governments for better-quality services. For international evidence has found effective for empowerment to work equitably, options for parents strengthening accountability mechanisms among and students should not depend on wealth or student ability. citizens, policymakers, and providers (box 1). These policy goals were identified through a review of rigorous 4. Promoting diversity of supply. By facilitating market research and analysis of top-performing and rapidly entry for a diverse set of providers, governments can improving education systems. increase responsibility for results, as providers become directly accountable to citizens as well as to the state. 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 3 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Figure 2. Relationships of accountability for successful these schools can be operated by the service delivery government or non-government providers or 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 the 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; 4 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Benchmarking Education Policies: the Indicator A = 2 points SABER-EPS Methodology Indicator B = 3 points Indicator C = 4 points The World Bank has developed a set of standardized Indicator D = 4 points questionnaires and rubrics for collecting and evaluating data on the four policy goals for each type of private The hypothetical country’s overall score for this policy school engagement established in a given country. goal would be: (2+3+4+4)/4 = 3.25. The overall score is converted into a final development level for the policy The policy goals are benchmarked separately for each goal, based on the following scale: type of private engagement. A point of emphasis here is that these tools only assess official and established  Latent: 1.00 – 1.50 policies governing private education provision.  Emerging: 1.51 – 2.50 Additional tools determine on-the-ground implementation of these policies. The SABER-EPS  Established: 2.51 – 3.50 information is compiled in a comparative database that  Advanced: 3.51 – 4.00 interested stakeholders can access for detailed reports, background papers, methodology, and other resources; The ratings generated by the rubrics are not meant to the database details how different education systems be additive across policy goals. That is, they are not engage with the private sector. added together to create an overall rating for engaging the private sector. For each indicator associated with the respective four policy goals, the country receives a score between 1 and Use of the SABER-EPS tool 4 (figure 3), representing four levels of private sector engagement: 1 (latent), 2 (emerging), 3 (established), or SABER-EPS is not intended to be used as a prescriptive 4 (advanced). policy tool, but rather, as a tool to generate an informed assessment of a country’s policies vis- à-vis current Figure 3. SABER rubric benchmarking levels knowledge about effective approaches. The results of this benchmarking exercise serve as a good starting point to discuss potential policy options that could be considered, based on the nuances of the local context and national education system. Education systems are likely to be at different levels of development across 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 Source: Baum et al. (2014). most to their immediate goals. The overall score for each policy goal is computed by For more information on the global evidence underlying aggregating the scores for each of its constituent EPS and its policy goals, see the SABER framework paper, indicators. For example, a hypothetical country receives What Matters Most for Engaging the Private Sector in the following indicator scores for one of its policy goals: Education (Baum et al. 2014). 5 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Education in Mauritania primary level, but recognizing that efforts need to be made at the secondary level (Table 1). Mauritania is a low-income country in Sub-Saharan Table 1: Gross enrollment rates in countries with similar Africa. The estimated Gross Domestic Product (GDP) per- income levels in Sub-Saharan Africa in 2008 capita was US$ 1,174 in 2012. Mauritania ranks 155th out Primary Lower Upper of 185 countries in the 2013 UNDP Human Development secondary secondary Report. In 2006, GDP growth reached a high of 18.6 Benin 107 53.1 18.2 percent, before Mauritania saw a recession with its GDP Burkina Faso 72.2 23.6 8.4 shrinking by 1.2 percent in 2009. Since then, annual GDP Cameroon 115.4 34.8 23.5 growth rates have risen to reach 7.6 percent in 2012. Cote d’Ivoire 80.7 35.6 18.1 Rapid urbanization has also created a near crisis situation Ghana 101.8 74.3 28.4 in social services, including education (Global Mali 80 46.8 14.8 Partnership for Education 2013-2014). The rural/urban Mauritania 97.6 22.9 24.1 divide remains strong and in 2010, 58.6 percent of the Djibouti 93.9 73.1 47.3 population lived in rural areas. The urban population is Senegal 83.5 37.9 15.4 mostly located in the District of Nouakchott, which holds Togo 112.1 57.9 21.2 around 20 percent of the country’s population (Country Average 94.4 46.7 21 Statistics Bureau 2014). Source: RESEN: Pôle de Dakar, MEN/DSPC Over the last fifteen years, the Mauritanian Government To address these challenges, the Government of has attached considerable importance to developing the Mauritania has established the National Program for the education sector. In April 1999, Mauritania adopted a Development of the Education Sector for 2011-2020 sweeping reform of its education system, which aimed (PNDSE II – for its acronym in French). The plan outlines at: other challenges for primary education, which are  consolidating its education system with the related to quality of teaching and difficulties in access to introduction of a single schooling track to help education, especially in rural areas. Challenges identified ensure full bilingual education; for the secondary level are even greater. There still  strengthening lower secondary education by remain great disparities in terms of access and of adding one additional year of schooling, and provision of secondary education even though the introducing physics and information technology transition rate from primary to secondary has increased starting in years three and four; and from 36.6 percent in 2009 to 53 percent in 2011. The  Strengthening foreign language instruction. Government recognizes the role that the private sector plays “as a privileged partner of the Government of Education in Mauritania follows a system that is Education in the hope to satisfy the fundamental organized into the following levels: education needs” (Mauritania Sector Education Plan 2013-2014).  Primary: 6 years beginning at age 6; Public expenditure in education has risen from 2.5  Lower-secondary: 4 years starting at age 12; percent of GDP in 2006 to 3.7 percent in 2011 (World  Secondary: 3 years starting at age 16. Bank 2013). In 2011, the government of Mauritania spent 13 percent of its total budget on education. The 2010 National State Report on the Education System Government spending on primary education has been in Mauritania (RESEN) identified key challenges that the relatively stable in the last few years, rising from 42.6 education system faces over the next decades, such as percent of total educational expenditure in 2008 to 45 demographic expansion and an increasing urban percent in 2011. However, educational expenditure at population which will contribute to a higher demand for the secondary level has slightly decreased from 25.6 education services that the Mauritanian government will percent of total educational expenditure to 21.1 percent face. The report offered an international comparative in 2011 (Figure 4). This shows that the Government of analysis of gross enrollment rates with other countries in Mauritania is still focusing resources at the primary level. the region in 2008, showing results above average for the 6 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Figure 4: Evolution of educational expenditure in Figure 5: Evolution of the net enrollment and survival primary and secondary levels (2008 to 2011) rate (2004-2014) 100% 100 90% Pre-primary and 80 tertiary 80% 70% 60 60% Educational 40 expenditure in 50% secondary as % of 20 40% total educational expenditure 30% 0 Educational expenditure in 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 20% primary as % of Net enrolment rate Survival rate 10% total educational expenditure Linear (Survival rate) 0% Source: World Bank 2016 2008 2009 2010 2011 Note: The World Bank’s database does not have yearly data for the survival rate indicator. This graph shows the trend for the last decade. Source: World Bank 2013 But there still remain differences within the population Access to education has also improved in Mauritania. In in terms of access to education and the possibility of fact, a higher government share of spending at the completing education at the primary level. In Mauritania, primary level has led to significant strides in terms of there is a gap in terms of completion rates according to access to education in the last few years. In 2004, the geographic location. In 2007, 75.8 percent of the children adjusted net enrolment rate was 72.2 percent compared completed primary education in urban areas compared to 75.1 percent in 2014. Similarly, the survival rate to the with 43.9 percent in rural areas. Similarly, 33.1 percent last grade of primary rose from 39.3 percent in 2004 to of children in urban areas completed secondary 81.2 percent in 2008 and then decreased to 64.1% in education, while only 7.8 percent did so in rural areas 2012 (Figure 5). In spite of this drop, it should be noted (Figure 6). that this indicator improved in the past decade. Furthermore, more girls than boys complete primary Figure 6: Primary completion rate by urban and rural school in Mauritania, with a gender parity index that rose areas (2007) from 1.01 in 2004 to 1.06 in 2014. 80 70 Completion rates at 60 primary level 50 40 Completion rates at 30 secondary level 20 10 0 Urban Rural Source: World Bank 2013 7 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Learning outcomes in Mauritania are poor. The Program Figure 7: Primary and secondary completion rates by for the Analysis of Francophone Education Systems Quintile (2007) (PASEC) analyses scores in French and math at the 5th Secondary Primary Grade level. Out of 7 countries with similar income levels, Mauritania has scored the lowest on average in French Quintile 1 and math, far behind the average. In 2004, on average, Mauritania’s 5th grade students scored 22.8 percent in French and 20.9 percent in Math, way below the country Quintile 2 averages which were 42.1 percent and 38.3 percent respectively for all 7 countries analyzed. According to PASEC, students who perform below 24% are below level Quintile 3 1 and they are considered to be failing scholastically (PASEC 2016). In its 2010 National State Report on the Education System (RESEN), the Government placed these results as a national priority to catch up with Quintile 4 similar countries in Sub-Saharan Africa (RESEN 2010). Table 2: Average scores in French and math for PASEC Quintile 5 countries Country Average Average Av. Date 0 20 40 60 80 100 score in score in French for Math for Source: World Bank 2013 5th Grade 5th Grade Cameroon 50 55.1 52.5 1996 The average household spending on schooling shows Madagascar 58.3 42.3 50.3 1998 great disparities in terms of what households can afford. Burkina Faso 46.1 44 45 1996 In 2008, on average, an urban household spent twice as Cote d’Ivoire 40.5 50 45 1996 much on primary education as a rural household. Senegal 37.6 34.9 36.2 1996 Furthermore, the 20 percent richest households spent Chad 32.6 20.9 27.2 1996 nearly 4 times more on primary education than the 40 Mauritania 22.8 20.9 21.8 2004 percent poorest households (Table 2). In the National Average 41.1 38.3 Program for the Development of the Education Sector, Source: Synthèse PASEC VII-VIII-IX the government has identified this trend and aims to find policy solutions that can help poor and rural households Mauritania’s education system also faces a great divide to be able to spend the same amount on education, and according to household income. In 2007, 89.4 percent of reach a national average in terms of access to schooling the children from the fifth quintile completed primary (RESEN 2010). education while only 16.9 percent of the children from the first quintile could do so. Similarly, 63.7 percent of the children from the fifth quintile attended secondary school and only 0.6 percent of the first quintile attended secondary education (Figure 7). There are large differences of access according to household background at all levels of education in Mauritania. 8 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Table 3: Average household spending on education per public schools has not increased at a similar pace, from student in 2008 in Mauritanian Ouguiya and US Dollars 3,793 schools in 2002 to 4,010 schools in 2010 and an annual average growth of 0.7 percent. The private US US sector has played an ever-growing part in maintaining MO MO Dollars Dollars provision of education in Mauritania. Between 2002 and Primary Secondary 2012, the total number of enrollments in private Geographical schools at the primary level increased from 12,391 to Rural 3,457 9.7 11,594 32.5 71,104 students. There has been a similar increase at Urban 6,957 19.4 42,015 117.7 the secondary level, where the number of students Income-based enrolled in a private school went from 6,955 to 37,994 40% poorest 3,391 9.5 17,392 48.7 in a decade (Figure 8; World Bank 2013). 40% middle 5,697 15.9 21,356 income 59.8 20% richest 12,722 35.6 61,117 171.2 Figure 8: Total number and share of students in the private sector at the primary and secondary levels Source: adapted by author from RESEN. Note: The exchange rate by the time of the production of this report 80000 30 was 356.96 Mauritanian Ouguiya per dollar. 26.6% 70000 25 Private Education in Mauritania 60000 Within Mauritania, two types of non-state schools exist: 20 50000 independent private schools and government-funded private schools. 40000 15  Independent private schools are owned and 11% operated independent of government 30000 intervention and receive no financial support 10 from the state. 20000  Government-funded schools are defined as 5 private schools receiving government funding in 10000 order to tackle illiteracy and poverty. These types of schools are community schools and 0 0 generally have a cultural or religious vocation. In its Education Sector Plan, the government of Total private enrolment at the primary level Mauritania believes that the private sector is essential to Total private enrolment at the secondary level provide a universal and high-quality education at all Share of private enrollment at the primary level levels (PNDSE II 2011-2020). It has pledged to support Share of private enrollment at the secondary level the private sector to strengthen: Source: World Bank 2013  Administrative support, especially concerning learning programs, follow-up and controls; Between 2002 and 2010, the share of the private sector  Specifications for the private sector; in the total number of enrollments at the primary level  Specific educational support, in terms of access has risen from 3.3 percent to 11.4. Similarly, the share of to educational tools and training for teachers; the private sector in the total number of enrollments at and the secondary level has risen from 8.8 percent to 26.6  Information systems, follow-up and the percent (World Bank 2013). The private sector plays a evaluation system. great role in delivering education at the higher level, representing a quarter of enrollments. Between 2002 and 2010, the total student intake at the primary level increased at an average annual rate of 4.4 percent (PNDSE II 2011-2020). However, the number of 9 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Access to private education is often linked to school Goal 1: Encouraging Innovation by Providers expenses, and stark differences in school fees in The highly particular and contextualized nature of Mauritania can explain the difficulty for poorer families education delivery necessitates decision making at the to access private education. Private education in 2008 school level. In order to be aware of and adapt to ranged on average from $97 (current) in primary schools changing student needs, school leaders require to $173 (current) at the secondary level; while average autonomy over the most critical managerial decisions. schooling costs in public school were $12 (current) for the primary level and $16 (current) in secondary (Figure The methodologically rigorous studies assessing the 9; RESEN 2010). impacts of local school autonomy on student learning outcomes generally find a positive relationship Figure 9: Average annual school expenses per child in (Hanushek and Woessmann 2010; Bruns, Filmer and Mauritania in 2008 (current USD) Patrinos 2011). A few studies find evidence that local 200 autonomy for school leaders is associated with increased 172.7 student achievement, as well as reduced student 150 repetition and failure rates (King and Özler 2005; Jimenez and Sawada 2003; Gertler, Patrinos, and Rubio-Codina 97 2012). 100 Public Private Box 2. International best practice – Encouraging 50 15.8 innovation by providers 11.5 0 The following decisions/processes are made at the school Primary Secondary level:  Establishment of teacher qualification standards. Source: RESEN 2010  Appointment and deployment of teachers  Teacher salary levels  Teacher dismissals  The way in which the curriculum is delivered Benchmarking Mauritania’s Private Schools  Class-size decisions This report presents the results of SABER-Engaging the  Management of the operating budgets Private Sector for independent private schools, as Mauritania has decided to involve this type of provider in offering basic education services. The report discusses Development levels the benchmarking results against the established recommended practices. For more information on the Independent private schools: global evidence underlying these policy goals, see the SABER framework paper, What Matters Most for Engaging the Private Sector in Education (Baum, Lewis, Government-funded private Schools: Lusk-Stover, and Patrinos 2014). The main policies, laws and official documentation used In Mauritania, only one legislative document has been to benchmark Mauritania include the following found regulating the autonomy of non-state schools in legislation: terms of class size. Schools have a high degree of 1. Decree 81.212 of 24 September 1981 Governing autonomy and both, Independent private schools and the status of the private sector of education Government-funded private schools, achieve an overall 2. Decree 82.015 bis of 12 February 1982 score of Advanced. establishing the conditions to open and control private schools In both Independent private schools and Government- funded private schools, the school has autonomy over setting teacher standards, appointing and dismissing teachers and determining how the curriculum is set. For independent private schools, Article 4 of Decree 82015 10 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Bis dated 12 February 1982 underlines the rules these B. Policies for Independent Private School Policies types of school need to follow to be officially set up, and includes a teacher standards component. Indeed, an Item Score Justification official document certifying the right to teach for each of Regional or municipal the teachers working at the school has to be provided to government has the legal authority over the authorities as a requirement for the school to open. Who has legal authority Emerging how resources are to determine maximum Notwithstanding there is a lack of regulation on other  allocated to classrooms class size? with final review from aspects of school autonomy for non-state schools such central authorities as class size. The 1999 Government school reform has set (class size). class size to a maximum of 50 students in Independent private schools, but for Government-funded private schools, the school has the authority over how resources are allocated to classrooms without final review from C. Policies for Government-funded private schools central authorities (class size). Item Score Justification The lack of regulation highlights the lack of government The school has the legal oversight as to school accountability. The establishment authority over how Who has legal authority Advanced resources are allocated of a regulatory framework pertaining to school to determine maximum to classrooms without autonomy could allow the government to have more  class size? final review from information and monitoring power over schools. central authorities (class size). Table 4: Encouraging Innovation by Providers Based on the benchmarking results for Encouraging A. In-Common Policies: Independent Private Schools and Innovation by Providers, the suggested policy options for Government-funded private schools Mauritania include the following: Item Score Justification  Establish a regulatory framework for non-state The schools have legal Who has legal authority authority to set their schools in order to define clear rules of how to set Advanced to set teacher own teacher standards teacher standards, appoint, deploy and dismiss  standards? without final review teachers and to determine how curriculum is from central authorities. delivered. The school (school principal, school council, Goal 2: Holding Schools Accountable Who has legal authority Advanced parent association etc.) to appoint and deploy has the legal authority to On average, students perform better in schools with  teachers? appoint teachers higher levels of accountability to the state without review by (Abdulkadiroglu et al. 2011; Carnoy and Loeb 2002; central authorities. Woessmann et al. 2007; Hanushek and Raymond 2005). The school has the legal For non-state providers, when government funding is Who has legal authority authority to determine Advanced tied to accountability standards, schools are incentivized to determine teacher teacher salary levels salary levels?  without review by to perform more efficiently (Barrera-Osorio and Raju central authorities. 2010; Patrinos 2002). A strong accountability system The school has the legal requires that the government, parents, and educational authority to dismiss professionals work together to raise outcomes. The Who has legal authority Advanced teachers without to dismiss teachers?  review by central government must play a role in ensuring that superior authorities. education quality is delivered by schools. SABER-EPS Who has legal authority The school has the legal assesses multiple policy indicators to determine non- to determine how authority over how the state provider accountability. A list of the key indicators curriculum is delivered Advanced curriculum is delivered is provided in box 3. (e.g., pedagogy, number  without final review of hours, learning from central authorities. materials)? 11 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Box 3. International Best Practice – Holding Schools However, there is no strict calendar to regulate this Accountable activity in this type of schools. Furthermore, article 24  The central government sets standards regarding stipulates that a report is sent to the relevant Minister, what students need to learn, including deadlines who can give observations, warnings or even sanctions for meeting these standards. leading to the possible closing of the school.  Students are required to take standardized examinations; exam results are disaggregated by There is no regulation which mandates that government- school, socioeconomic status, gender, etc. funded private schools be subject to inspection.  Schools are required to report on the use of public Therefore, the inspection mechanism does not support funds as a condition of continued funding. school improvement by outlining strengths and  The central government or an external agency weakness or requiring the school to implement an performs school inspections as determined by improvement plan. A lack of standardized examinations school need. and/ or inspection also prevents the government from  Schools produce school improvement plans. implementing sanctions.  School performance is tied to sanctions and/or rewards. Table 5: Holding Schools Accountable Development levels A. In-Common Policies: Independent Private Schools and Private independent schools: Government-funded Private Schools Item Score Justification Government-funded Private schools: Government does set Does government set Emerging standards for what standards on what students need to  In terms of establishing accountability between the students need to learn learn, but there is no government and schools, Mauritania’s policies are and by when? indication of by when or how well Established for independent private schools and Latent for privately-managed schools. Accountability for both Sanctions include types of schools could be strengthened. Furthermore, Advanced additional monitoring, Are sanctions there is no clear policy governing Government-funded  fines and as a final administered based private schools in terms of holding schools accountable. measure school on the results of closures based on the school inspections or The government does set standards for what students results of school performance on need to learn for either independent private schools or inspections or standardized exams? Government-funded private schools, but there is no performance on standardized exams. indication of by when or how well. Curriculum is validated differently according to the school type. For independent private schools, a standardized examination is set only for entry onto the first grade of B. Policies for Independent Private Schools secondary level, also known as the “entry exam 1AS.” No other exams occur during subsequent grades for private Item Score Justification independent schools. For Government-funded private schools, there is no existing legislation on setting What is the current Standardized exams policy on standardized Established are administered standardized examinations, and schools can apply their annually. exams?  own rules on a case-by-case basis. Articles 14 to 21 of Decree 82.015 concerning school Does government Government requires inspections regulate the way inspections in independent Emerging schools undergo an require schools to inspection but no private schools are run and how sanctions are undergo an  term is specified. administered. The Articles state that independent inspection? private schools undergo a constant inspection process. 12 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Does the inspection Inspection reports Goal 3: Empowering all Parents, Students, and report outline the Emerging include strengths and Communities strengths and weaknesses of the  Empowering parents, students, and communities is one weaknesses of the school. school? 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 C. Policies for Government-funded private Schools obstacle, governments need to increase providers’ Item Score Justification accountability to all clients, particularly underserved groups. Educational access and the performance of What is the current Students do not take schools and students can be substantially impacted by policy on standardized Latent standardized exams openly disseminating comparable school performance exams?  information (Andrabi, Das, and Khwaja 2009; Pandey, Goyal, and Sundararaman 2009; Björkman 2007; Are schools required Government does not Reinikka and Svensson 2005); increasing parental to report to require schools to government on the report on the use of influence in the school (Skoufias and Shapiro 2006; King Latent and Özler 2005; Jimenez and Sawada 1999; Gertler, use of public funds as a public funds as a  condition for the condition for the Patrinos, and Rubio-Codina 2012; Di Gropello and continuation of continuation of Marshall 2005); and implementing demand-side funding? funding. interventions, such as scholarships, vouchers, or cash Does government Government does not transfers, to help the most vulnerable students (Orazem Latent and King 2007; Filmer and Schady 2008; Lewis and require schools to  require schools to undergo an undergo an Lockheed 2007; Patrinos 2002; Barrera-Osorio 2006). inspection? inspection. Effective policy practices for non-state providers include some of the indicators listed in box 4. Does the inspection Not applicable if the report outline the Latent government does not Box 4. International best practice – Empowering all strengths and  require schools to Parents, Students, and Communities weaknesses of the take part in school? inspections.  Information on standardized tests and school inspections is made available by multiple sources. Informed by the results of the benchmarking procedure,  Parents and students are included in the inspection and improvement-planning processes. the following suggested policy options would help  Admission processes for entry into publicly funded Mauritania increase the accountability of private schools are not based on student background; a schools: lottery is used in cases of oversubscription.  Establish learning standards and benchmarks  School choice is not hindered by mandatory within the set curriculum. financial contributions.  Set a calendar for school inspections.  Tax subsidies, scholarships, or cash transfers are available to families whose children attend  Establish a regulatory framework for Government- independent private schools. funded private schools in order to define clear rules for schools to set up standardized exams, report back on the use of public funds, carry out Development levels school inspections and disseminate inspection reports. Private independent schools: Government-funded Private schools: In Mauritania, the policies toward both independent private schools and Government-funded private schools 13 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 to empower parents, students, and communities are Table 6: Empowering all Parents, Students, and Emerging. Additional policy strategies could increase the Communities client power of parents and enable parents and students to hold providers accountable. A. Policies for Independent Private Schools According to Decree 81.212 approved on September 24, Item Score Justification 1981, Independent private schools only provide limited information on standardized exam results for the entry What is the current Ad hoc information is policy on providing provided to parents on exam of the first grade of Secondary school, also known information to Emerging standardized exam as “entry exam 1AS.” Furthermore, this type of school parents/students on  results or inspection only discloses information regarding certain inspection the results of reports reports. This information is usually shared on billboards standardized exams? in front of the school, although other information tools Are students Neither students or are used on an ad-hoc basis at the school level. Regarding interviewed as part of Emerging parents are surveyed the inspections, neither students nor parents are the inspection  as part of an inspection interviewed as part of the process. process? process There is currently no policy that mandates Government- Does the government The government does funded private schools to inform parents and students provide tax subsidies not provide tax on school and student performance. Information is or cash transfers for Latent subsidies or cash shared on a school-by-school basis, based on the families attending transfers for families  independent private attending private communities’ usual practices. schools? Please schools. describe. Concerning the entry selection process in Government- funded private schools in Mauritania, schools have to prioritize enrolment of children whose parents live in the B. Policies for Government-funded private Schools area of the school in question. Item Score Justification For Government-funded private schools, parental choice is restricted by compulsory parental monetary What is the current No information is policy on providing provided to parents on contributions which, if not paid, ban the child from information to Latent the results of attending the school. parents/students on  standardized exams or the results of inspection reports standardized exams? Are students Not applicable if the interviewed as part of Latent government does not the inspection  require schools to take process? part in inspections. Are schools allowed Schools are allowed to to apply selective select students based Emerging admission criteria on geography.  when selecting students? Parental choice is Schools are allowed Established restricted by voluntary to charge the non-monetary parent following fees or  contributions i.e. in accept contributions kind labor or goods 14 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Informed by the results of the benchmarking process for  Information on market-entry requirements is Mauritania, the following suggested policy options available from multiple sources. would help empower parents and students to influence  Regulatory fees do not prohibit market entry. the quality of education services provided by private  Publicly funded non state schools and public schools: schools receive equivalent student funding;  Increase access to information on school quality to funding is increased to meet specific student parents, including examination and school needs. inspection reports, and allow them to make  The central government provides incentives for market entry, such as access to start-up funding, informed decisions on their child’s schooling. public land, and public buildings.  Remove school selection criteria which may  Schools are able to plan budgets six months in discriminate against marginalized groups. advance of the academic year.  Privately managed schools are not restricted by For Government-funded private schools: student numbers, school numbers, or location.  Establish a legislative framework to regulate  The central government does not restrict tuition information at the school level for standardized levels at private independent schools. exams and inspections to empower parents.  Ease compulsory parental monetary contributions to allow poorer families to access government-funded Development levels private schools. Private independent schools: Goal 4: Promoting Diversity of Supply Government-funded Private schools: By opening education to a more diverse set of providers, governments can increase client power and make In Mauritania, the policies in place to promote diversity providers directly accountable to students and parents of supply for independent private schools have achieved for results. Although the public sector will always remain an overall score of Established, representing some an important (and, in most cases, the predominant) instances of good practice. Policies for Government- provider of education services, educational choice can be funded Private schools achieved an overall score of used as part of a package of reforms to improve Emerging, underlining the need for additional policies education access and quality in both the public and governing the promotion of diversity of supply. private sectors (Hoxby 2003; Levin and Belfield 2003; De la Croix and Doepke 2009; Carnoy and McEwan 2003; Private independent schools set their own tuition fees Himmler 2007; Angrist et al. 2002; World Bank 2003). In without any review from government. The government order to facilitate quality improvements through also allows all of the following provider types to operate increased school competition and choice, governments a school: not-for-profit, faith-based and for-profit. can (i) allow multiple types of providers to operate; (ii) promote clear, open, affordable, and unrestrictive In terms of certification standards, private schools have certification standards; and (iii) make government to follow restrictions on land and facilities. Furthermore, funding (and other incentives) available to non-state according to Article 4 of Decree 82015, private schools. This policy goal aims to increase the ability of independent schools have to comply with the following diverse providers to provide education services. In order certification criteria. to do so, a number of policy indicators are suggested, as For the school: outlined in box 5.  An authorization document indicating the nature Box 5. International best practice – Promoting diversity of the school, its education objective, its utility in of supply terms of the general country education policy and the number of students the school will  The central government allows different types of enroll; providers to operate schools.  A document outlining the number of envisaged  Certification standards do not prohibit market personnel working at the school, teaching and entry. 15 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 non-teaching personnel, and the qualifications academic year. In 2013, government-funded private needed for each position; schools received approximately $528,000 (current) in  An official document certifying the right to teach funding, around 305,000 for Koranic schools and 223,000 for each teacher; for Mahadras schools. However, there are no rules of  A document outlining the diplomas that will be how to use funds once they are received. awarded by the school and the number of classes; Table 7: Promoting Diversity of Supply  The timetable and curriculum for each class; and A. In-Common Policies: Independent Private Schools and  A plan of each building, for both teacher housing Government-funded Private Schools and classrooms. Item Score Justification The government The person establishing the school must provide: allows three of the Which organizations following types to Established  A birth certificate; have legal authority to  operate a school:  A proof of nationality; operate a school? Not for profit Faith based  A criminal record; For profit  A copy of all diplomas; Certification  A copy of the authorization to teach; standards that are  A complete work history; not linked to education outcomes  A document stating fulfillment of military restrict entry service; Are there minimum including all of the standards for  A certificate of employment (if the person has registration or for Latent following: 1.land previously worked in an official ministry or (undulating, distance independent private  from public venues organization); schools to be allowed etc.) or 2.facilities  A medical certificate signed by two doctors; to operate? (separate science  A list of all other schools the applicant might labs, weather vanes possess or other applications submitted; and etc.) or 3. assets( ownership of land or  A signed paper outlining that the applicant buildings) complies with the national curriculum, official teaching hours, that the applicant agrees to B. Policies for Independent Private Schools teaching and medical inspections and to report in a timely fashion on the status of their school. Item Score Justification Who has legal Schools set fees Advanced without any review Registration and certification guidelines for authority to determine  tuition fee standards? from government. Government-funded private schools are not officially Are there clearly Registration/certifica outlined. These schools usually work at the community publicized guidelines tion guidelines are level and their registration differs from area to area. from government made public but from These schools do not have to pay any fees in order to outlining the steps or Established a single source. operate, enabling diversity of supply. requirements for independent private  schools to receive In Government-funded private schools, academic registration/authorizat operating budgets are equivalent to per-student ion? amounts in public schools. However, the government Are independent Schools are able to does not offer incentives, such as access to government private schools operate without Advanced land or unused buildings. required to pay any of paying fees.  the following fees in order to operate? Government-funded private schools are given information on the allocations to be transferred to them between 4 and 6 months before the start of the 16 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 C. Policies for Government-funded private Schools as low income, girls and/ or other marginalized groups. Item Score Justification Are there clearly Registration/certifica publicized guidelines tion guidelines are From Analysis to Action: Policy Options for from government not officially outlined. Mauritania outlining the steps or requirements for Latent Mauritania is facing increasing demographic pressures government-funded  and urbanization and a clear divide of its population private schools to receive between rural and urban areas which are affecting the registration/authorizat way its education system is organized. Net enrollment ion? rates at the primary level are at just over 70 percent and Are government- Schools are able to they have not evolved since 2004, and learning outcomes funded private schools operate without Advanced compared to similar income countries are poor. But required to pay any of paying fees.  there are encouraging signs, as survival rate to the last the following fees in order to operate? grade of primary has more than doubled from 39.3 Does the government Academic operating percent in 2004 to 64.1 percent in 2012. Furthermore, provide equivalent budgets are there are more girls than boys who complete primary funding of academic equivalent to per- school in Mauritania, with a gender parity index of 1.05 budgets (teaching student amounts in salaries, learning Emerging public schools. in 2011.  materials, technology) for public and The Government of Mauritania has identified the private government-funded sector as a key player for education provision. Between private schools? 2002 and 2012, the total number of enrollments in Do government- No Incentives private schools at the primary level has multiplied by funded private schools Latent receive any startup  nearly 6 times and, in 2010, it represented 11.4 percent funding/grants? of enrollments at the primary level and 26.6 percent at How far in advance of Schools are provided the secondary level. However, private education is still the beginning of the information on the much more expensive than public schools, and only the academic year are allocations to be government-funded transferred to them wealthiest share of the population of Mauritania can Advanced have access. Based on the results of the benchmarking private schools between 4 and 6  provided information months before the exercise, four suggested policy options, to strengthen on the amount of their start of the academic the government’s engagement with the independent upcoming government year. private school sector to ensure learning for all, are funding? outlined below. The policy options focus on: Informed by the results of the benchmarking procedure 1. Establish a regulatory framework for for Mauritania, the following suggested policy options government-funded private schools in order to would help to better promote diversity of supply: define clear rules For both types of schools: 2. Increase accountability of private schools through more inspections and follow-up action  Ease the minimum standards on land and facilities as well establishing sanctions for school required for schools to be allowed to operate. improvement Government-funded private schools: 3. Ensure information is easily accessible to parents  Establish publicized guidelines outlining the steps and ban schools from using inequitable entrance or requirements for government-funded private selection criteria for students schools to receive funding as well as registration/authorization. 4. Providing greater incentives to support a diverse number of private school providers while  The government should consider providing ensuring equitable access funding to target specific student populations such 17 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 These policy options are supported by international framework within existing schools and provide support evidence and/or examples of countries that have used to non-state schools that will be created in the future. such interventions to strengthen their systems and improve service delivery. The country examples include The methodologically rigorous studies assessing the international best practices, systems that have impacts of local school autonomy on student learning continued to improve from a variety of starting points, outcomes generally find a positive relationship and countries that have taken innovative approaches. (Hanushek and Woessmann 2010; Bruns, Filmer and Patrinos 2011). A few studies find evidence that local Policy option 1: Establish a regulatory autonomy for school leaders is associated with increased framework for Government-funded private student achievement, as well as reduced student schools and increase accountability repetition and failure rates (King and Özler 2005; Jimenez and Sawada 2003; Gertler, Patrinos, and Rubio-Codina Legislation with regards to government-funded private 2012). Moreover, such regulations on personnel and schools is unclear across all of the identified policy goals, curriculum may limit the potential for private providers and for private independent schools, in terms of school to operate and expand. For instance, certain schools may autonomy. There are no legal standards requiring be unable to employ a sufficient number of qualified schools that receive financial or material support from teachers. the government to act any differently than unfunded schools. The Government of Mauritania could establish a Country examples clear regulatory framework governing the functioning of Government-funding schools. Furthermore, a clear In England, private independent schools and privately regulatory framework could be coupled with increased managed schools (known as Free Schools and actions in terms of school accountability by Academies) are able to make their own personnel implementing better inspections and providing decisions and adapt the curriculum. For example, some incentives and/or sanctions that contribute to school schools opt to use the government teacher standards improvement. The three recommendations are outlined while other schools tailor these to meet the needs of the below. local community. They are also able to tailor the curriculum providing it is balanced and broad. Schools 1. Establish a framework for school are still required to teach English, Mathematics and autonomy for both independent private Science and to teach religious education in the case of schools and government-funded schools faith-based schools (England Department for Education 2013). In Mauritania, there is currently no regulation as to how The Knowledge is Power Program (KIPP) is the largest government-funded private schools and private charter management organization in the United States. independent schools set teacher standards, appoint, There are currently 141 KIPP schools, serving 50,000 deploy and dismiss teachers and to determine how students and over 86 percent of the students are from curriculum is delivered. By default, this means that these disadvantaged backgrounds (KIPP 2013a). KIPP set their types of schools do have autonomy as to how they teacher competencies framework- the KIPP Framework decide these rules at their level. However, the fact that for Excellent Teaching. The framework has four areas: non-state schools have autonomy because of lack of knowledge, the teaching cycle, self and others, and regulation does not mean that regulation should not be classroom culture (KIPP 2013b). An evaluation of 43 implemented or that a strong regulatory framework KIPP middle schools found an average estimated impact should not exist. The government should design and of 0.36 standard deviations in math (representing implement regulations that ensure that government- roughly 11 months of learning) (Tuttle et al. 2013). In funded schools comply with quality standards. addition, KIPP schools have had success increasing levels The Government of Mauritania could establish a of student and parent satisfaction. KIPP is currently framework to set clear rules to comply with the above- expanding its model to developing countries through its mentioned criteria, and still grant these schools the One World Program, which aims to create a global autonomy that they need to set a clear regulatory 18 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 network of transformational, breakthrough schools that Country example will be run by local, independent partner organizations. In Pakistan, Punjab Education Foundation’s Assisted 2. Hold schools accountable through better Schools (FAS) program provides monthly per-student inspections cash subsidies and free textbooks to low-cost private schools. The program grew exponentially from 8,573 In Mauritania, there is also no current legislation defining students and 54 schools in 2005 to over 1 million the rules for Government-funded schools to set up students and 3,000 schools in 2012. Participation in the standardized exams, report back on the use of public program requires that schools achieve a minimum funds, and conduct school inspections, including student pass rate in a semi-annual multi-subject exam – inspection reports. Strong accountability systems consist Quality Assurance Test (QAT). At least two-thirds of of more than minimum standards; they also require tested students must score above 40 percent on the mechanisms to continually improve school performance. QAT. If a school fails to achieve the minimum pass rate on two consecutive QATs, it is permanently disqualified A review of quality assurance and school monitoring for funding. A rigorous evaluation of the program found systems across eight Asian Pacific countries found that a that these accountability measures had a positive causal number of countries proceed beyond basic minimum impact on student learning. Schools in risk of losing standards and effectively use accountability mechanisms access to subsidies were nearly always successful in to ensure continual improvement (Mok et al. 2003). The raising student scores to meet the minimum pass rate on Office for Education Standards in Education (Ofsted) in subsequent exams. In 2007, only 49 percent of schools in England and the National Inspectorate in the the study met the minimum pass rate in November of Netherlands adopted a risk-based inspection approach, 2007, compared to nearly 100 percent of these same allowing schools performing well and continually schools in March of 2008. The program also offers two improving to face less frequent inspection, while schools cash bonus benefits. The first is a teacher bonus for performing below standard are inspected more achieving a high level in school test performance. In this frequently and rigorously (Dutch Inspectorate of sense, Punjab Education Foundation awards an annual Education 2013; Ofsted 2013). This approach reinforces bonus of 10,000 rupees (US$118) to a maximum of five the accountability relationships at two levels, providing teachers per school. In order to qualify for to this bonus, autonomy to high performers and targeting the school has to be a program participant and at least accountability to schools in greatest need. An effective 90% of its students should obtain a score of 40% or inspection process, including appropriate follow-up, can higher in the QAT. The second is a competitive school be an important means of school improvement. bonus for top school test performance. The foundation Inspection frameworks should outline strengths and grants this annual bonus of 50,000 rupees (US$588) to weaknesses of schools and priorities for improvement. the program school of each of the seven main program Improvement planning can facilitate positive change as a districts with the highest share of students who score school strives to deliver better educational outcomes for 40% or above in the QAT(Barrera-Osorio and Raju 2010). all students. Incentives such as sanctions and rewards can then be used to reinforce the accountability For more information on Foundation Assisted Schools mechanism. see http://www.pef.edu.pk/pef-departments-fas- overview.html 3. Provide incentives and/ or sanctions for school improvement Policy Option 2: Ensure information is easily accessible to parents and prohibit schools from Incentives at the school level can also help to strengthen using inequitable entrance selection criteria for buy-in and raise accountability. For non-state providers, students when government funding (such as vouchers or subsidies to non-state schools) is tied to accountability standards, Based on current policies, the government of Mauritania it creates an incentive for schools to perform more could increase the information provided to parents on efficiently (Patrinos 2002). school quality. Access to comparative information could enable parents and students to influence school quality 19 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 through increased choice and direct voice to providers. Policy Option 3: Providing greater incentives to Evidence from Pakistan found that school report cards support a diverse number of private school improved learning by 0.1 standard deviations and providers reduced fees by almost 20 percent. The largest learning gains (0.34 standard deviations) were for initially low- A meta-analysis of education studies in developing performing (below median baseline test scores) private countries found that adequate numbers of textbooks, schools, with the worst of these more likely to close exercise books, blackboards, chairs, desk and high (Andrabi 2009). quality roof, walls and floors and electricity are more important for student learning than computers and Country examples other more costly interventions (Paul Glewwe, Hanushek, Humpage and Ravina, 2011). The An early adopter of school report cards was Parana state Government of Mauritania could ease its criteria for in Brazil. Between 1999 and 2002 report cards were school registration in terms of land and facilities. Even introduced to inform school communities and stimulate though these criteria to open a private school contribute greater involvement in the school improvement process. to a higher school quality for new schools, they should The report cards were disseminated to a wider range of not be stricter than those applied to public schools. This stakeholders including all schools, parent-teacher would facilitate the market entry and expand access to a associations (PTAs), municipal education authorities and more diverse set of providers. The government can all 70,000 state education employees, including 46,000 increase the responsibility for results, as providers teachers. Overall results were reported in the state subsequently become directly accountable to citizens as education secretariat’s monthly newsletter, used in well as to the state. In order to do so, a conducive teacher and PTA workshops, disseminated via press regulatory environment is needed to promote diversity releases and press conferences (EQUIP2). of supply. In the Dominican Republic, El Salvador, Guatemala, Honduras, and Nicaragua, a USAID-funded program – Country example Civic Engagement For Education Reform in Central In New York City, the Department of Education oversees America – implemented a school report card that and supports new charter schools to improve learning focused on indicators in four areas: opportunities and meet community needs. Charters have the autonomy to determine their own policies, 1. Context: basic profile information (number of design their educational programs, and manage all students in each grade, etc.) and access to services human and financial resource aspects of the school. at the school (sanitation, electricity, etc.) When a new charter school is established, a five-year 2. Inputs: class size, access to resources (notebooks, performance contract, or a “charter”, is set up to ensure pens, etc.), and access to social services (school high student achievement. There are no set minimum meals, health programs, etc.) criteria for registration, but instead the performance 3. Processes: student and teacher attendance, school standards are organized under four guiding questions: plan implementation, and parent participation 4. Results: coverage and efficiency (repetition and 1. Is this school an academic success? retention) a. High Academic Attainment and Improvement The results of the school report card are used by b. Mission and Academic Goals communities to develop and monitor implementation of c. Responsive Education Program school action plans (CERCA 2006). d. Learning Environment 2. Is this school a fiscally sound, viable For more information on CERCA School Report Cards organization? visit: http://bit.ly/CERCAcards a. Governance Structure and Organizational Design 20 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 b. School Climate and Community Engagement c. Financial and Operational Health 3. Is this school in compliance with its charter and all applicable laws and regulations? a. Approved Charter and Agreement b. Applicable Federal and State Law c. Applicable Regulations (such as safe and secure school facilities) 4. What are the school's plans for its next charter term? a. School Expansion and Model Replication b. Organizational Sustainability c. School or Model Improvements Source: New York City Department of Education 2013 For more information on charter school certification in NYC, see: http://schools.nyc.gov/community/planning/charters/A ccountability_Oversight.htm. 21 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Performance? Evidence from a Grant Program in Acknowledgements Uganda” No. 326. IGIER (Innocenzo Gasparini Institute for Economic Research), Bocconi University. The report presents country data collected using the Bruns, B., D. Filmer and H.A. Patrinos 2011. Making Schools SABER-EPS policy intent data collection instrument. This Work: New Evidence on Accountability Reforms. SABER-EPS country report was authored by Hugo Washington DC: World Bank. Wesley at World Bank headquarters in Washington, Carnoy, M., and Loeb, S. 2002. "Does External Accountability D.C. in collaboration with Ould el Hadj Brahim Affect Student Outcomes? A Cross-state Analysis." Mohamed Mahmoud (principal investigator) in Educational Evaluation and Policy Analysis 24(4):305- Mauritania. Inputs were provided by Minju Choi, 331. Katherina Hruskovec Gonzalez, Laura Lewis, and Oni CERCA. 2006. School report card. Washington, DC: Academy for Educational Development. Lusk-Stover. Substantive editorial updates were offered Country Research Summary.” CREATE by Katherina Hruskovec Gonzalez to finalize the report De la Croix, D., & Doepke, M. 2009. “To segregate or To in late 2016. The report was prepared in consultation Integrate: Education Politics and Democracy. The with the Government of Mauritania. The SABER-EPS Review of Economic Studies, 76(2): 597-628. team gratefully recognizes the support, suggestions and Di Gropello, E., and J. H. Marshall. 2005. “Teacher Effort and feedback of the World Bank Group Mauritania Schooling Outcomes in Rural Honduras.” In Incentives Education team. The SABER-EPS team acknowledges to Improve Teaching, ed. E. Vegas. Washington, DC: the support of all who have contributed to the report. World Bank. England Department for Education 2013 The SABER-EPS team would like to thank the http://www.education.gov.uk/schools/leadership/d eployingstaff/a00205583/teachers-standards-faqs. 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Washington DC. 24 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Annex I: SABER-Engaging the Private Sector Rubrics The following tables display the indicators and scales utilized for benchmarking each country’s engagement with the private sector through policy. Across the four types of private schools, the indicators pertaining to each goal are largely the same; where a certain indicator pertains only to certain school types, this context is noted within the table. The following tables display the indicators and scales utilized for benchmarking an individual country’s policy on private sector engagement in education. Across the four types of private schools, the indicators pertaining to each goal are largely the same; where a certain indicator pertains only to certain school types, this is noted within the table. Table A1.1 Policy Goal: Encouraging Innovation by Providers Indicator Latent Emerging Established Advanced The central government has Regional or municipal Regional or municipal Schools have the legal the legal authority to set governments have the legal governments have the legal authority to set their own Teacher standards minimum standards for authority to set minimum authority to set minimum teacher standards without teachers. standards for teachers, with standards for teachers without final review by central final review by central final review by central authorities. authorities. authorities. The central government has Regional or municipal Regional or municipal Schools (i.e., individual the legal authority to governments have the legal governments have the legal school principals, school appoint and deploy teachers. authority to appoint and authority to appoint and deploy councils, parent Teacher appointment deploy teachers. teachers without review by associations, etc.) have and deployment Appointments are subject to central authorities. the legal authority to final review by central appoint teachers without authorities. review by central authorities. The central government has Regional or municipal Regional or municipal Schools have the legal the legal authority to governments have the legal governments have the legal authority to determine Teacher salary determine teacher salary authority to determine authority to determine teacher teacher salary levels levels. teacher salary levels, with salary levels without review by without review by central final review by central central authorities. authorities. authorities. 25 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Table A1.1 Policy Goal: Encouraging Innovation by Providers Indicator Latent Emerging Established Advanced The central government has Regional or municipal Regional or municipal Schools have the legal the legal authority to governments have the legal governments have the legal authority to dismiss Teacher dismissal dismiss teachers. authority to dismiss authority to dismiss teachers teachers without review teachers, with final review without review by central by central authorities. by central authorities. authorities. The central government has Regional or municipal Regional or municipal Schools have the legal the legal authority over how governments have the legal governments have the legal authority over how the Curriculum delivery the curriculum is delivered. authority over how the authority over how the curriculum is delivered curriculum is delivered, curriculum is delivered without without final review by with final review from final review from central central authorities. central authorities. authorities. The central government has Regional or municipal Regional or municipal School have the legal the legal authority over how governments have the legal governments have the legal authority over how resources are allocated to authority over how authority over how resources resources are allocated to Classroom resourcing the classroom (e.g., class resources are allocated to are allocated to classrooms classrooms without final sizes). classrooms, with final without final review by central review by central review from central authorities (e.g., class size). authorities (e.g., class authorities (e.g., class sizes). sizes). The central government has Regional or municipal Regional or municipal Schools have the legal Budget autonomy the legal authority over the governments have the legal governments have the legal authority over the (not applicable to management of school authority over the authority over the management management of school independent private operating budgets. management of school of school operating budgets operating budgets without schools) operating budgets, with without final review by central final review by central final review by central authorities. authorities. authorities. 26 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Table A1.2 Policy Goal: Holding Schools Accountable Indicator Latent Emerging Established Advanced The national government The national government The national government does The national government does not set standards on does set standards for what set standards for what students does set standards for Student Standards what students need to learn. students need to learn, but it need to learn and also indicates what students need to does not indicate how well EITHER by when OR how learn, by when, and how or by when. well. well. Students do not take Standardized exams are Standardized exams are Standardized exams are standardized exams. administered, but not administered annually. administered annually and annually. results are disaggregated Student Assessment by school, socioeconomic background, gender, and other criteria of student disadvantage. The central government The central government The central government The central government does not require schools to requires schools to undergo requires schools to undergo requires schools to undergo inspections. inspections, but no term is standard term inspections. undergo inspections, with Inspection specified. the frequency of inspections depending on the results of the previous inspection. Not applicable if the Inspection reports include Inspection reports include the Inspection reports include government does not require strengths and weaknesses of strengths and weaknesses of a strengths and weaknesses schools to take part in the school. school, as well as specific of the school. Schools are Improvement inspections. priorities for improvement. required to submit a planning school improvement plan with specific priorities for improvement following the inspection. 27 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Sanctions are not Sanctions include additional Sanctions include additional Sanctions include administered based on the monitoring and/or monitoring and/or fines, which additional monitoring, results of school inspections warnings; they are are administered based on the fines, and as a final or school performance on administered based on the results of school inspections or measure, school closures; standardized exams. results of school inspections school performance on decisions are made based Sanctions and or school performance on standardized exams. For on the results of school rewards standardized exams. government-funded, privately inspections or school managed, and voucher performance on schools: rewards may also be standardized exams. For used. government-funded, privately managed, voucher schools: rewards are also used. The central government The government requires The central government The central government does not require schools to schools to report on the use requires schools to report on requires schools to report report on the use of public of public funds as a the use of public funds as a on the use of public funds Financial reporting funds as a condition for the condition for continued condition for continued as a condition for (not applicable to continuation of funding. funding, but on an ad-hoc funding according to a continued funding on a independent private basis and not according to a standard term. standard-term basis, with schools) standard-term schedule. greater monitoring of schools that have failed to adhere to report requirements in the past. Table A.1.3. Policy Goal: Empowering All Parents, Students and Communities Indicator Latent Emerging Established Advanced No information is provided Ad-hoc information is Regular information is A variety of sources to parents on the results of provided to parents on provided to parents on provide parents regular standardized exams or standardized exam results or standardized exam results or information provided on inspection reports. inspection reports. inspection reports. standardized exam results (disaggregated by school, socioeconomic background, gender, and Information other criteria of student disadvantage.) and inspection reports. Policy specifies information on interventions designed to targeted disadvantaged student groups. 28 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Table A.1.3. Policy Goal: Empowering All Parents, Students and Communities Indicator Latent Emerging Established Advanced Not applicable if the Neither students nor parents Students and/or parents are Student and parents are government does not require are surveyed as part of the interviewed as part of the interviewed as part of the schools to take part in inspection process. inspection process. inspection process. inspections. Voice Selection Schools are allowed to Schools are allowed to Schools are not allowed to Schools are not allowed to (not applicable to select students based on select students based on select students but schools are select students and are independent private both academic performance academic performance or not required to use a lottery if required to conduct a schools) and geography. geography. oversubscribed. lottery if school if over- subscribed. Contributions Parental choice is restricted Parental choice is restricted Parental choice is restricted by Parental choice is not (not applicable to by compulsory monetary by voluntary monetary voluntary nonmonetary restricted by any type of independent private parent contributions that, if contributions (i.e., contributions (i.e., in-kind required parental schools) not paid, prohibits a child contributions to a school labor or goods) to a school. contributions. from attending the school. fund). The central government The central government The central government The central government Financial support does not provide tax provides tax subsidies to provides tax subsidies and cash provides targeted cash (for independent subsidies or cash transfers families whose children transfers to families, which can transfers that can be used private schools only) to families whose children attend private schools. be used to enable their children by disadvantaged students attend private schools. to attend private schools. attending private schools. 29 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Table A.1.4. Policy Goal: Promoting Diversity of Supply Indicator Latent Emerging Established Advanced The central government The central government The central government allows The government allows allows one of the following allows two of the following three of the following types of all of the following types types of organizations to types of organizations to organizations to operate of organizations to Ownership operate schools: operate schools: schools: operate schools: Community Community Community Community Not-for-profit Not-for-profit Not-for-profit Not-for-profit Faith-based Faith-based Faith-based Faith-based For-profit For-profit For-profit For-profit Certification standards, Certification standards, Certification standards, which Certification standards, which are not linked to which are not linked to are not linked to education which are not linked to education outcomes, restrict education outcomes, restrict outcomes, restrict market education outcomes, do market entry. These include market entry. These include entry. These include one of the not restrict market entry. all of the following: two of the three following three following criteria: Certification 1. land (undulating, distance criteria: 1. land (undulating, distance standards from public venues, etc.) 2. 1. land (undulating, distance from public venues, etc.) facilities (separate science from public venues, etc.) or 2. facilities (separate science labs, weather vanes, etc.) 2. facilities (separate labs, weather vanes, etc.) 3. assets (ownership of land science labs, weather vanes, 3. assets (ownership of land or or buildings) etc.) buildings) 3. assets (ownership of land or buildings) Registration/certification Registration/certification Registration/certification Registration/certification Market entry guidelines are not officially guidelines are not made guidelines are made public, but guidelines are made information outlined. public and available only by a single source. public and by multiple upon request. sources. Schools are able to operate Schools are able to operate Schools are able to operate Schools are able to Regulatory fees while paying four or more while paying two to three while paying one type of fee. operate without paying types of fees. types of fees. fees. The central government sets The central government Schools set fees, but those fees Schools set fees without standardized tuition fees. does not set standardized are subject to review by the any review by the central Tuition fees tuition fees, but imposes a central government. government. (for independent tuition cap (an overall private schools only) amount or percentage increase). 30 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Table A.1.4. Policy Goal: Promoting Diversity of Supply Indicator Latent Emerging Established Advanced Academic operating budgets Academic operating All budgets — academic and All budgets — academic are not equivalent to per- budgets are equivalent to other, such as for facilities and and other, such as for Funding student funding amounts in per-student funding transport — are equivalent to facilities and transport — (not applicable to public schools. amounts in public schools. per-student funding amounts in are equivalent to per- independent private public schools. Schools do not student funding amounts schools) receive targeted funding to in public school. Schools meet specific student needs. receive targeted funding to meet specific student needs. No incentives exist. Schools are supported by Schools are supported by two Schools are supported by one of the following: of the following all of the following 1. 1. start-up funding similar 1. Start-up funding similar to Start-up funding similar to that provided to public that provided to public schools to that provided to public Incentives schools 2. access to government land schools (not applicable to 2. access to government or unused government 2. access to government independent private land or unused government facilities land or unused schools) facilities 3.exemption from local taxes government facilities 3. exemption from local (i.e., property taxes) similar to 3. exemption from local taxes (i.e., property taxes) that granted to public schools taxes (i.e., property taxes) similar to that granted to similar to that granted to public schools public schools Schools are provided Schools are provided Schools are provided Schools are provided Planning information on the information on the information on the allocations information on the (not applicable for allocations to be transferred allocations to be transferred to be transferred to them allocations to be independent private to them less than 1 month to them between 1 and 3 between 4 and 6 months before transferred to them more schools) before the start of the months before the start of the start of the academic year. than 6 months before the academic year. the academic year. start of the academic year. Coverage of charters is Coverage of charters is Coverage of charters is No restrictions. Charters restricted by three of the restricted by two of the restricted by one of the are not restricted by following: following: following: student numbers, school Coverage 1. student numbers 1. student numbers 1. student numbers numbers, or location (i.e., (for privately managed 2. school numbers and 2. school numbers and 2. school numbers and location certain cities or districts). schools only) location (i.e., certain cities location (i.e., certain cities (i.e., certain cities or districts). or districts) or districts) 3. only new or only existing 31 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 Table A.1.4. Policy Goal: Promoting Diversity of Supply Indicator Latent Emerging Established Advanced schools are able to become No restrictions due to charters new/existing school status. 32 MAURITANIA ǀ ENGAGING THE PRIVATE SECTOR IN EDUCATION SABER COUNTRY REPORT |2016 www.worldbank.org/education/saber The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions, with the aim of helping countries systematically strengthen their education systems. SABER evaluates the quality of education policies against evidence-based global standards, using new diagnostic tools and detailed policy data. The SABER country reports give all parties 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 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. 33