The Key Role

of

Implementation

Implementation Defined:

Implementation is defined as a specified set of activities designed to put into practice an activity or program of known dimensions. According to this definition, implementation processes are purposeful and are described in sufficient detail such that independent observers can detect the presence and strength of the "specific set of activities" related to implementation. In addition, the activity or program being implemented is described in sufficient detail so that independent observers can detect its presence and strength.

Planners must always be aware of the singular fact that weaknesses or inadequacies in implementation capability have always been the great stumbling blocks and risk in the achievement of targets sets by the plan. What should planners do?The following may prove useful to ponder about.

In the spring of 1989 six ministers and former ministries of education were asked by UNESCO what had been the single most important

lesson they had gleaned from their experience at the head of the education structures of their

nations. All of their answers had to do with implementation:

1. To be regularly involved in routine management and to interact with senior staff of the ministry and universities.2. To avoid announcing intentions to change established procedure in the ministerial departments too early.

3. To find practical solutions to sensitive political issues which will otherwise fail , however good the intentions.

Here are they:

4. To convince , with the professional arguments, senior staff and the teaching profession of the value of proposed policy changers.

5. To program the adoption of new approaches, delivery systems, examination and selection procedures with care.

6. To establish co- ordination with other ministries , other levels of responsibility and the other partners involved in the future of the country’s educational system.

MANAGEMENT AND PLAN IMPLEMENTATION

A pressing need generally felt in the region is the improvement ofimplementation capacities in order to fulfill the targets of educational plans within the available resources.

This concern is reflected in various structural reforms particularly those aiming to decentralize responsibility For educational planning and management to intermediate and local levels , as mentioned previously. Another related factor underlying experimentation with new managerial techniques is the concern , shared by all countries in the region to improve the efficiency of educational institutions and the entire education system in order to make the best use of the limited resources available.

In most countries of the region, increasing social demand for access to education at all levels combined with the escalation of unit cost has obliged government to seek to improve the cost –effectiveness of educational expenditure and to seek additional funding sources to maintain and develop the system.

MANAGEMENT OF THE EDUCATION SECTOR

In 1987 , the World Bank sent a project team to Philippines to evaluate

the management systems of the education sector in

the Philippines . This team includes Ernesto

Franco as local management and

planning specialist.

Processes for Sector ManagementAs perceived by the World Bank

(WB) , the processes for education management include:

a. The formulation of policy, setting forth broad goals and medium and long term plans.

b. Annual planning and budgeting as a basis for annual work program preparation.

c. Program and project development and execution and

d. Monitoring and evaluation.

POLICY AND PLAN FORMULATION

In the Philippines, the WB notes that DECS is the primary government body responsible for developing and implementing plans and programs in education in line with broad policies legislated by Congress.

The main instrument in decision-making is public hearings to which DECS, NEDA, public and private agencies are invited.

PLANNING AND BUDGETING

The planning process begins with the issuance by NEDA of the plan guidance to DECS ,which in turn issues guidelines to the regional offices and ultimately to the schools. The plans themselves are submitted by the schools, and verified and consolidated at each level of the administrative structure as they move upward to the central office of the DECS .

The Presidential Memorandum of November 4,1987 required all departments to establish a central project group to be responsible for project development and implementation. In response to the memorandum ,DECS confirmed in March 1998 that the Educational Development Project Implementing Task Force (EDPITAF) will be responsible for all foreign – assisted projects in education or other areas as may be assigned by the Secretary.

Project Development And Implementation

Monitoring and Evaluation

The WB has noted the various bureaus and offices submit weekly, monthly, quarterly, semiannual and annual reports such as statistical bulletins and project reviews. The data collected include student enrollment s, repetitions, failures, graduations, the number of classes, teacher s by sex and appointment status, administrative and support staff, sections per grade and shifts .

The main areas being monitored and evaluated based on these data are the participation , retention, and failure rates at the elementary levels. At the tertiary level , no indicators are currently monitored except for results of the NATIONAL COLLEGE ENTRANCE EXAMINATION then and the test administered to graduates who want to be qualified in their professional areas.

ISSUES POLICY AND PLAN FORMULATION

According to the WB study, to keep the policy aims and process realistic , a continuing dialogue among all the involved parties must be sustained with the objective of ensuring that policies can be effectively translated into viable action plans.

PLANNING AND BUDGETING The WB Philippines study observed that the current process of planning and budgeting performance indicator seem to suffer from the several weaknesses: a. Aggregated performance indicator b. Data collection c. Planning and budgeting methods d. Slow and inaccurate ,unclear procedures and standards e. Low status and compensation of planning and budgeting officers.

ISSUES PROJECT DEVELOPMENT AND

IMPLEMENTATION Organizational responsibilities for project development and implementation are unclear with both OPS and EDPITAF involved in project management . Such a overlapping of responsibilities causes confusion and uncertainty among the groups concerned.

MONITORING AND EVALUATION As in most other organization in the Philippines , monitoring and evaluation in DECS are weak. If goals are to be attained in an environment of scarce resources and cultural and geographical diversity, feedback on plans and programs through monitoring and evaluation is critically important. It is particularly essential to develop financial indicators such as cost per student for different types of school and student achievement indicators.

ISSUES

Nonformal Education According to the WB Team, a final key issue in management and planning is harmonizing the operations of the various agencies working in the many areas of nonformal education.

RECOMMENDATIONS

POLICY AND PLAN FORMULATION

o Improve long-term national education development policy planning and decide what data and policy research are needed for the purpose.o Strengthen the role of OPS in data gathering and sector wide policy research.o Resolve inconsistencies in basic data such as the gap between enrolment growth and population growth rates.o Consider the reinstatement of a national board of education as policy- making arm to DECS and advisor to the Congressional committees.

PLANNING AND PROGRAMMING

Revise performance indicators and criteria downward from the regional to the divisional level to address intraregional differences in educational achievement and resource needs . Improve timeless and accuracy of annual data collection for management information by including only essential and clearly understood data ,thereby reducing time and complexity in filling forms. Prepare manuals which will clarify procedures and inter and intra- departmental responsibilities and accountability by each level of administration. Experiment in one or two regions on the limit and possibilities of decentralizing budgeting responsibilities. Improve some of the methodologies used for projecting enrolment , teachers and classroom facilities. Intensify computerization in data processing and analysis by ensuring full operation and maintenance of computer. Introduce a management audit cycle besides the planning and budgeting cycles.

PROJECT DEVELOPMENT AND EXECUTION

Transfer the current role of EDPITAF to DECS proper by improving and expanding

research and project development capacities OPS and the relevant bureaus

and by creating an office bureau of project services ,which would take charge of

implementation ,specially in procurement and disbursement.

Encourage EDPITAF personnel to be absorbed into DECS proper particularly in

OPS ,the Bureau and the new office/ bureau.

STAFF DEVELOPMENT Strengthen DECS recruitment by revising its qualification requirement of 18 units in education credits to attract professionals of various backgrounds.

Upgrade the status and compensation of regional planning and budgeting officers to attract and retain well- qualified people.

Intensify management training , giving priority to principals , supervisors and superintendents.

CHRISTINE A. GILO

REPORTER