Financing for equity in pre-primary education
1. Education resources to subnational governments
2. Education resources to institutions
3. Education resources to students and families
4. Social policies and family support programmes
Introduction
Key financing indicators (UIS Data)
In Benin, the official entry age for pre-primary education is 4 years old. While the national legal framework of the number of years of free or compulsory pre-primary education on UIS system, between 2000 and 2018, the net enrolment rate for pre-primary education rose from 3.86% to 12.94%.
Governance
Pre-primary education in Benin is financed and overseen primarily by the Ministry of Maternal and Primary Education (MEMP), which is legally mandated under national legislation and Decree No. 2020-323 to design, implement, monitor and evaluate the State’s policies in early childhood and primary education. The Ministry is responsible for setting training and quality-assurance objectives, mobilising public and private financing, and prioritising investments for improved learning outcomes. Within MEMP, the Directorate of Early Childhood Education holds direct responsibility for executing pre-school policies and promoting pre-school expansion, while the Departmental Directorates of Maternal and Primary Education ensure decentralised implementation of policies, including technical support to communes for school mapping, infrastructure planning and equitable access.
Tuition-free status
The State maintains fee-free education for the pre-primary level by covering the school fees and registration charges that schools previously collected from households. This arrangement channels public resources directly to pre-primary and primary schools in the form of operating subsidies or transfers, rather than providing vouchers or scholarships to individual households.
1. Education resources to subnational governments
Benin’s decentralised education system assigns communes responsibility for the construction, equipment and maintenance of pre-primary schools, for which they receive capital transfers from the State through mechanisms such as the FADEC.
Pre-primary and primary education are managed along the same administrative and budgetary line, from central government through departmental services and to communes. For operational and quality-related expenditures, budget allocations are estimated using distribution keys based on the number of pre-primary and primary learners for administrative and support services, and on the number of pre-primary teachers for activities related to teaching quality. The subsidy level provided to schools varies according to the geographical zone in which they are located, with higher support allocated to schools in more disadvantaged or hard-to-access areas.
However, investment priorities remain strongly skewed toward primary education. In 2021, capital expenditure for pre-primary represented only 1.8% of the Ministry of Maternal and Primary Education’s total capital budget, indicating limited dedicated investment in the subsector.
2. Education resources to institutions
Community-based preschool services in rural areas
Benin’s policy framework includes a government-supported expansion of community-based preschool services specifically targeting rural children, who remain among the most underserved in terms of early learning opportunities. According to the Post-2015 Education Sector Plan (2018–2030) and the 2021 UNICEF budget note, this modality was expected to account for 4% of total preschool provision by 2021 and to reach 10% by 2030, with the State subsidising 50% of the unit pedagogical cost. The budget analysis notes that additional support is planned for specific regions such as Plateau, Atacora, Alibori, Borgou and Couffo.
Special education workforce and capacity development
The Post-2015 Education Sector Plan (2018–2030) outlines objectives and programmes for children aged 3 to 14, including measures to strengthen inclusion for learners with disabilities. The strategy specifies the reinforcement of initial and in-service training for teachers and school leaders, including those working in special education settings. It includes provisions for training coordinators of community-based rehabilitation units and specialised teachers such as community animators and instructors in vocational contexts to support children with severe disabilities. It also sets out the training of teachers in braille and sign language to meet the needs of learners requiring adapted communication. Each measure is accompanied by dedicated budget allocations aimed at developing the specialised workforce needed to effectively implement inclusive education.
3. Education resources to students and families
The State maintains fee-free education for pre-primary level by covering the school fees and registration charges that schools previously collected from households. This arrangement channels public resources directly to pre-primary and primary schools in the form of operating subsidies or transfers, rather than providing vouchers or scholarships to individual households.
4. Social policies and family support programmes
Administered under the authority of the Ministry of Labour and Public Service, cash benefits are provided to wage-earning workers who are enrolled in the social insurance system and have met the required minimum employment and contribution periods. Eligibility also requires earning a salary at least equal to the statutory minimum wage (SMIG). The allowance covers dependent children from birth up to a maximum age of 21, with the upper age limit varying depending on factors such as schooling or disability. To remain eligible, parents must submit a school attendance certificate each year for children aged six and above.
