Strengthening the middle tier for foundational learning: school support, data use, and policy implementation in Senegal

• In Event: Re-examining language of instruction for peace, equity, and foundational learning in Senegal

Proposal

In a region where numerous countries suffer from ongoing conflict, Senegal is striving to ensure its role as a beacon of peaceful, democratic self-reliance. The government invites all citizens to reinforce the institutional architecture of peace and greater opportunity and prosperity. A key instrument of the country’s self-determination is the harmonized model for bilingual education that reasserts the importance of national languages as mediums of instruction at the start of elementary education. Regional and local educational and governmental authorities are playing significate roles in supporting reform success.

This study focused on the priorities, activities and experiences of the middle tier – academic inspectorates at the regional level (IA) and education and training inspectorates (IEF) at the district level. These layers of the middle tier are critical links between schools and the broader education system, providing essential administrative and instructional support (Bell, 2025; Childress et al., 2020; Honig & Rainey, 2023; Spillane, 1996). Previous studies of the middle tiers in Senegal (De Grauwe & Lugaz, 2007; Lugaz et al., 2010) found that they face severe resource and capacity constraints. Heavy caseloads, high transportation costs, and limited training hinder their ability to provide meaningful pedagogical support.

This study sought to inform approaches to strengthening the middle tier support for bilingual instruction (World Bank, 2022). It addressed three overarching questions:
1. How does the middle tier support early grade teaching and learning?
2. How are data collected, analyzed, and used to inform decision-making and support early learning?
3. How is the implementation of bilingual education progressing in different regions?

The study found that early grades are often not a priority in the support provided by IAs, IEFs, or schools. IAs provide strategic oversight but limited support to elementary education. In contrast, IEF teams provide valued instructional support to schools but they continue to face constraints. Inspectors play multiple roles and manage competing demands. Classroom observation visits are rare. School directors working collectively are the main providers of teacher support. They lead classroom observations and organize communities of practice within and across schools. Though under-recognized and underfunded they manage to provide connective tissue between the IEFs and schools. School management committees and local governments make up for elementary schools having no operational budgets. Stronger coordination among them could strengthen their combined impact.

A strong foundation of data collection and analysis exists, but data are not fully used to support early grade learning due primarily to competing priorities. Extensive data are collected on student learning and school operations. School director collectives play a crucial role in consolidating and transmitting data, reducing the burden on districts. IEF staff regularly analyze data and use them to target visits, remediation, and training. However attention in the system focuses primarily on improving performance on the end of elementary cycle exam. The study found strong support for bilingual instruction across system levels, but effective implementation depends on sustained technical support, materials, and integration into planning routines, areas where major gaps persist, particularly in regions that have fallen behind on implementation.

Authors

• Joseph DeStefano, Independent Consultant

• Sheena Bell, O.I.S.E. University of Toronto