Presentation on theme: "Second Stakeholders Meeting for Amendment to Sindh PPP Act 2010 and Review of AAS Program Facilitated by Baela Raza Jamil-ITA- Technical Adviser (honorary)"— Presentation transcript:
Second Stakeholders Meeting for Amendment to Sindh PPP Act 2010 and Review of AAS Program Facilitated by Baela Raza Jamil-ITA- Technical Adviser (honorary) and Reform Support Unit (RSU) November 25, 2013
Under Performing Schools of Sindh Low Performing Government Schools Functional =41,697 –Closed 5697 - SEMIS Response i. Improving Systems and Performance of E&LD ii. Expanding Partnerships(PPPs) for Systemic Improvement for Quality, Equity & Access (ECE to Secondary levels) Low Enrolment Low Learning Outcomes Poor Governance 2 Poor Facilities
National & Sindh Education Profile (ECE,Primary & Middle) - Table : GER ECE< NER Primary, NER Middle PSLMs 2011-2012 REGION AND PROVINCE GER ECE, NET PRIMARY and Elementary Level ENROLMENT (PERCENT) 2011-2012 GER ECE 2011-12 NER Primary (Age 6-10) 2011-12 NER Middle (Age 11-13) MAL E FEMAL E BOT H MAL E FEMAL E BOT H MAL E FEMAL E BOT H Pakistan434144726368413338 Punjab4950 777274433840 Sindh333132655359392934 KPK394541725966413036 Balochsitan254130593649321424
Key Indicators Sindh- Where we are and Where we want to be? SOURCE: PSLMs 2011-12 Teacher presence Student attendance Functioning facilities 2018Baseline 2018Baseline 2018Baseline Enrolment (6-10 years) 2018 5 Source: ASER 2012 83% Govt. 60% Govt. ? ? ? ? Toilet 48 % Water 56 % B.Wall 65 % 59% OVERALL
6 PPPs - mostly with partners’ funds PPPs- with Government Funds Lo- autonomy for Partners in: Management Hi - Autonomy for Partners in: Recruitment; transfers; Changes in systems Management; Recruitment /transfers Minimal Transfer of resources (SMCs only) Changes in systems Partners bringing in resources Transfer of Govt. Resources Hi to Lo Accountability – performance Hi Accountability – Performance Adopt a School Sch. Imp. Partnerships School Consolidation Sindh Educ. FoundationNGOs/Donors through E&LD RSU/Partnerships- SEF as Tech. Facilitator + AAS program Types of PPPs for School Improvement One off” Partnerships Based on Powerful linkages SMB- IRC Khairpur Endowments Not scalable More autonomous models Financial transfers from govt. to partners Under PPP Act 2010 AAS-Charters/ Academies Low learning outcomes Poor Facilities Poor Governan ce Low enrolmen t Sub-Optimal Public Sector Schools Continuum of PPPs – Low to High in Sindh Low learning outcomes Insufficient and Poor Facilities Poor Governance Low enrolment (esp. girls) LO- Autonomy Hi Responsiblity Hi- Autonomy Hi Responsiblity 91% Primary Schools 5% Middle Schools 3% Second. Schools.3% Higher Sec.Schools Low transition rates
7 School Partnerships Models – Triggered by: SEF (Facilitator/Capacity building partner) E&LD Provincial Director E&LD District Adopters (Many) E&LD Provincial District SIP – Partner Adopter (All SIP programs through partnerships- INGOs/NGOs - SMB-) District Government EDO –DEO District Adopter (IRC) We have 3-4 models with different agencies – volume small – what is desirable ?
AAS Agreement SEF 2012 – Part I Parties – School/s Preamble – purpose Part II Roles and Responsibi lities Part III Governanc e and Duration. Part IV Indemnificat ion & Adopters cannot sub- contract Key Actors Provincial Govt. E&LD Director –Division DEO- District Adopter Duration Up to 10 years Performance based Exit with 3 months notice 8
Suggestions to Improve Agreement for AAS Parts of the Agreement AAS Agreement has 4 parts Part I (Pg. 1) relates to the parties and the preamble stating the purpose of adoption and the specific school with SEMIS code Part II about the ’obligations’ of the a) Govt. b) Adopter, c)District Govt. (as enabler) and d) SEF(facilitator) Part III about the composition and purpose of the Steering Committee and duration of the agreement Part IV covers Indemnification (of Govt. E&LD) for loss or damage and Responsibility of the adopter not to assign any part of the agreement to a ‘third party” Suggestions for Amendment Part I: needs to have terms amended and defined viz. ‘upgrade”, means something specific as education vocabulary; Schools will be “developed” by the adopter needs to be defined as a menu of options AAS- Objective is improving student learning outcomes through SDP-.may need to be rephrased /elaborated - Part II. 1.1-1.4. Govt. provincial: all strategic tasks assigned to the province whereas the school may be very distant – some reworking is needed with strategic principles assigned and closer district level responsibilities –1.1 SDP is not the driver of capital expenditure – only minor op-ex ones- so a rethink there too; 1.2 amend ‘the adopter is ‘allowed entry to government schools’ – it is a defensive statement, - the tone and wording must change in an official government’s scheme 2.1 gives the impression that Supervisor /ADEO are off the hook so reword this sentence too 2.2 Have the SMC rules been amended to ensure that “adopted schools have a Patron’ if not this may be important to amend too 2.10- can be done in the rules for 25 A Sindh Compulosry Free Education Act 2013 3.1-3.3 Some of the operational responsibilities be reassigned to district level from 1.1-.to-1.4 (Provincial) 4.1-4.9 SEF is a technical facilitator of many important areas – Part III – 5.1 Steering Committee does not have Special Secretary (schools) and not the relevant Director /Division and DEOs. From the districts where schools are adopted. 5.4 should read as Coordinator AAS- SEF and the District E&LD Signatures to include: Adopter; Director of Schools; EDO/DEO’ SEF and Special Secretary and Secretary E&LD s 9
Suggestions on Institutional Modalities School Improvement Programs through a variety of PPPs – AAS – through SEF, District E&LD;Provincial E&LD – SIP through NGOs/INGOs/Donors through E&LD – Special SIPs – with other modalities through E&LD- Institutional Modalities – – A) SEF -RSU (SEMIS) with other line depts. – B) RSU & E&LD – C) PPP Node in the E&LD working with RSU to engage with the PPP unit if needed with transparent and responsive mechanisms in place. PPP Node establishment a must within E&LD for implementation of the PPP Act 2010 SEF M.D’s strong advice for a coherent modality with Govt. in the driving seat- SEF seeks to continue with the AAS with buy in from partners/donors to upgrade more govt. schools at each level and expansion beyond Karachi (annex SEF Note on AAS recommendations) Decisions at Stakeholders 2 nd meeting November 25 2013 SEF AAS to remain with goodwill and confidence of adopters; why shift a good practice – improve it. EFS- a section 42 Company may step into other/new School Improvement Programs (SIP) through PPPs (UK 40 mill. facility) Draft Policy for AAS to be designed for consideration – flexible and accountable Agreement of AAS to be amended as more proactive – balanced; increased responsibility of district office Small AAS schemes can be stand alone and not be part of the PPP Act 2010 – larger programs of AAS – above a certain funding ceiling may qualify or chose to be part of the PPP Act Innovative programs of adopters to be considered and shared across SEF and PPP Node in E&LD for PPP Act 2010 10
2 ND MEETING OF STAKEHOLDERS NOVEMBER 25 TH 2013 PPP Act 2010 Proposed Amendments 11 Definition of PPPs in the PPP Act 2010 “A partnership carried out under a Public-Private Partnership Agreement between the public sector represented by an Agency and a private party for the provision of an infrastructure facility, management functions and / or service with a clear allocation of risks between the two parties” Task: To align and amend the PPP Act 2010 with the definition above- services marginalized in a largely infrastructure driven act with a bias towards mega projects
12 PPP Act-Policy- Governance, Institutional & Financial Arrangements Each PPP Project to have an Agreement- & Project Implementation Unit in PPP Node in Department- Not in place- PPP Unit in Finance Dept. PPP Board PPP Act 2010 PPP Policy 2011 (rules embedded here ) Viability Gap Fund Project Development Facility Fund
PPP Unit – Objectives http://www.pppunitsindh.gov.pk In particular the PPP Unit was established to achieve following objectives: Promoting social development and inclusive economic growth through development of infrastructure; Ensuring sustainable long-term funding for infrastructure development through mobilization of private investments; Ensuring technical, economic and financial viability of infrastructure projects through adequate project preparation; Improving the efficiency of management, operation and maintenance of infrastructure facilities through introduction of modern technology and management techniques; Achieving a larger scope and better quality of infrastructure services for end users through the additional financial and human resources mobilized from the private sector; Ensuring financial sustainability of infrastructure services through full cost recovery supplemented by viability gap funding (VGF), if necessary; and Protecting the best interests of all stakeholders including end users, the Government and the private sector. 13
PPP Unit- a happening Unit! http://www.pppunitsindh.gov.pk Legal Framework – Law- Policy – (Rules ) Institutional Framework – PPP Unit/ Finance-Dept. – PPP Node- Line Depts. Regulatory Framework – PPP Board Financial Support – Project Development Facility (PDF) Fund – Viability Gap Fund (VGF) – VGF Guidelines- Sindh – 4.6 (p.9): VGF can be financed through the budgets, gifts, grants, transfers or by any other means the Finance Dept. deems appropriate - – some donors can provide grants for VGF 14 Projects under PPP Act 2010 2 operational rest in pipeline Hyderabad MirpurKhas Dual Carriageway (HMDC) Project Jhirk Mulla Katiar Bridge and Link Road NICH Safety & Security Sindh Nooriabad Power Project Run-of-the-River Hydro Power Project at Rohri Canal RD-15Run-of-the-River Hydro Power Project at Rohri Canal RD-15 Karachi Thatta Dual Carriageway Food Storage - Silos Five (5) 20MW Solar Power Projects Existing Gas Based Power Projects Bus Rapid Transit System (BRTS) Karachi Khairpur Khajoor Mandi (KKM) Project Hyderabad Tando Muhammad Khan (HTMK) Dual Carriageway
Financing http://www.pppunitsindh.gov.pk/site/index.php?pid=25 Project Development Facility Fund To enable departmental PPP Nodes to undertake feasibility tudy and related project preparation Project Development Fund has been created. Furthermore, to support the execution of projects of socio-economic significance, which the government agencies would otherwise either not initiate or be able to complete, Viability Gap Fund has been created. Both of these funds would encourage the agencies/departments to pursue the government’s objectives regarding PPPs. 16 For the PPP Nodes to undertake feasibility study and related project preparation Project Development Fund has been created. Furthermore, to support the execution of projects of socio-economic significance, which the government agencies would otherwise either not initiate or be able to complete, Viability Gap Fund has been created. Both of these funds would encourage the agencies/departments to pursue the government’s objectives regarding PPPs.
Viability Gap Fund (VGF) Guidelines 2012– Sindh 2.1The VGF will provide the funds for those projects approved by the Government that are economically viable but financially unviable. The funds shall be disbursed to the private sector operator/ project company which has been contracted to carry out the project under any PPP variants mentioned in the Sindh PPP Act, 2010. 2.2 The VGF will therefore cover all of the contractual payment where the users or beneficiaries are not required to pay. Alternatively, the VGF will pay the difference between the contractual payment necessary for the Developer to recover his costs and to meet his agreed return on investment and the estimated amount that will be recovered from the users. This will entice the interest of the private sector in important public infrastructure projects as they will be satisfied that there are sufficient funds to allow successful project implementation. It will also provide the necessary reassurance to the lenders of the project company by enhancing the creditworthiness of the project. ( Dept of Finance GoSindh: p. 6) 17 4.6 (p.9): VGF can be financed through the budgets, gifts, grants, transfers or by any other means the Finance Dept. deems appropriate - some donors can provide grants for VGF
PPP Act 2010- Comprises 18 Chapter I: Preliminary Chapter II: Organizational Framework Chapter III: Project Delivery Process Chapter IV: Procurement Chapter V: Finance Chapter VI: Other Issues Schedule I
“Services” – to be consistently added to the PPP Act 2010 Definition Proposed for Review and Finalization Option A Preferred Definition by Stakeholders – Generic to All sectors Service: Service means any of professional activities concerning imparting of public benefits in publicly owned institution/facility and/or programme related or ancillary to the objective of that facility (s) and institution (s). Option B Service means an act of support that may be intellectual, technical or strategic in nature required to ensure quality of a project, programme, facility or institution. Examples of services in education may include intangible products such as technical assistance, consultancy, planning, expertise, content development, training, strategy development, marketing, transportation, procurement, incubation ideation units etc. Sectors listed in Schedule I will have domains of work for which specific professional services may be required. By Amima Saiyid- TRC/PCE and Naveed Sheikh 19
“Services” as defined to be consistently added to the PPP Act 2010 for amendment Definition Proposed and Finalized by Stakeholders Service means “any of professional activities concerning imparting of public benefits in publicly owned institution/facility and/or programme related or ancillary to the objective of that facility (s) and institution (s) (as per list in Schedule 1). – Amima Saiyid- TRC/PCE and Naveed Sheikh 20
Amendments Proposed A. Add services as agreed and defined by stakeholders throughout the Act where deemed appropriate - to be considered by the Board /Law Dept. B. Chapter I – Preliminary – Definitions: clauses to be considered for amendments p) Local Govt. reference to be updated t) Add services after infrastructure x)..community facilities and services for improving access, quality and equity After z) insert and reorder alphabets aa) “Service” means any of professional activities concerning imparting of public benefits in publicly owned institution/ facility and/or programme related or ancillary to the objective of that facility (s) and institution (s)- as per list in Schedule I bb) Sindh Public Procurement Rules cc) “Viability Gap Fund” means the funds from the Government which are made available to the private party to cover revenue and human resource/capacity/materials shortfalls where the users or beneficiaries are not required to pay for socio-economic benefits through grants, subsidies or guarantees; 21
Amendments cont... C. Suggestions on the Board-Governance 1. The composition is not balanced to reflect PPPs in true spirit; majority members from public sector headed by the CM 2. CM may be over-worked political representative with potential conflict of interest 3. Instead of the CM, CS to select the 3 Private sector members and sector specialist 4. Private sector and sector specialists must be represented with the right generic profiles across all sectors- especially social sectors D. Chapt 3 PROJECT DELIVERY PROCESS Article 16 – (3) The draft Public-Private Partnership Agreement shall include but not be limited to the following provisions, as applicable: An additional clause be added after XXI XXII: Type and amount of service relevant to the sector ensuring baseline, midterm and end of term target/s assessment for outcomes based performance 22
E : Schedule 1 Proposed additional sectors 23 see sections 2 (j) ] INFRASTRUCTURE & SERVICE SECTORS Canals or dams; Education –(Pre-School to Higher Sec. level 1-12, non-formal and Higher/tertiary Education) ; (TVET already including in STEVTA Law) Special Education Health facilities; Housing; Information technology; Land reclamation; Power generation facilities; including Coal and power generation Roads (provincial highways, district roads, bridges or bypasses); Sewerage or drainage; Solid waste management; Sports or recreational infrastructure, public gardens or parks; Trade fairs, or cultural centers; Tourism and Resort Development Urban transport including mass transit or bus terminals; Water supply or sanitation, treatment or distribution; and Wholesale markets, warehouses, slaughter houses or cold storages.
PPP Act 2010 Amendments to be aligned to the Elaborate – Institutional /Governance Arrangements Amendments proposed in the PPP Act 2010 would have to be reviewed by legal experts and reflected in all its support documents/facilities viz. – PPP Policy 2011 – PPP Board – Viability Gap Fund (VGF) – Project Development Facility – Fund- – PPP Node and Project Implementation Unit (PIU) TORs Routing of Amendments proposed : a) cleared through the Law dept. and b) presented to the PPP Board formally – 24
Schedule 1 Amendments proposed 25 see sections 2 (j) ] INFRASTRUCTURE & SERVICE SECTORS Canals or dams; Education –(Pre-School School 1-12, non-formal and Higher Education) ; (TVET already including in STEVTA Law) Special Education Health facilities; Housing; Information technology; Land reclamation; Power generation facilities; including Coal and power generation Roads (provincial highways, district roads, bridges or bypasses); Sewerage or drainage; Solid waste management; Sports or recreational infrastructure, public gardens or parks; Trade fairs, or cultural centers; Tourism and Resort Development Urban transport including mass transit or bus terminals; Water supply or sanitation, treatment or distribution; and Wholesale markets, warehouses, slaughter houses or cold storages.
PPP Act 2010 has an Elaborate – Documentation & Institutional Paraphernalia Amendments proposed in the PPP Act 2010 would have to be reflected in all its support documents viz. – PPP Policy 2011 – Viability Gap Fund (VGF) – Project Development Facility – Fund Routing of Amendments: The proposed amendments will have to be routed through Law dept. and presented to the PPP Board formally – – TORs of Board, PPP Unit and PPP node would have to be amended as well if there are any implications for the text and definitions 26
What Impact are We Looking for from PPPs? This needs to be elaborated by : – Sub-sector – Types of Services – Key Indicators Must have appropriate institutional support and mechanisms –for implementation Must be performance and accountability oriented which can be measured and shared publicly 27
Impact Outcome More Children in Schools More Children persisting in schools More Children learning well.. With measurable outcomes 28
Journey towards Higher Outcomes through PPPs Higher enrolment Higher attendance Teacher presence Facilities improved- expaned Quality Improved – Higher Learning outcomes Poor teaching Insufficient facilities Low Attendance Children not in school Low level of learning 29 http://www.globalpost.com/sites/default/files/imagecache/gp3_full_art icle/photogallery/gallery_1763684/Pakistan_06_02_09_Stuteville_Ins idePoorGovtSchool_EDIT.jpg
Next Steps – Final Meeting and Presentation to the Minister /CS/ACS 30 Key Steps Decided 1. 2. 3. Date of Final meeting prior to the Final Presentation of the task,process and outcomes Venue
List of All Stakeholders by Institution HANDS Sindh Education Foundation SZABIST TRC UNICEF 31
VGF Definitions –Infrastructure Oriented- need to expand them to services and soft areas The amount of money needed to fund the ongoing operations or future development of a business or project that is not currently provided by cash, equity or debt. Funding gaps can be covered by investment from venture capital or angel investors, equity sales, or through debt offerings and bank loans. In Context Of Public Private Partnership: The Viability Gap Funding Scheme provides financial support in the form of grants, one time or deferred, to infrastructure projects undertaken through public private partnerships with a view to make them commercially viable. GoI has established a Viability Gap Fund to aid the PPP infrastructure projects which face the viability gap due to inherent nature of the project. The Scheme is administered by the Ministry of Finance. (Govt. of India) 33