PART I: PROJECT IMPLEMENTATION ASSESSMENT
H. FUTURE OPERATION
I. KEY LESSONS LEARNED
33. The financial analyses must not only assess the budgetary impact of enrollment, but the efficient use of physical and human resources. Similarly they must analyze the budgetary impact of subsidies, because subsidies make some programs unsustainable on a larger scale (i.e. the subsidization of teacher upgrading, school bus services, payment of examination fees, school lunch programs).
34. Combining the seasonality of community volunteer labor with the supply of materials was found to be problematic. Future education projects that involve classroom construction, should consider NGO involvement to organize community labor contributions, through contract agreements with the DOSE.
35. The use of large national contractors for small contracts for classroom construction throughout the country gave mixed results. Future similar projects should consider the use of a Contract Management Agency, which would be better able to manage numerous small contracts.
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8-36. Thorough and sustained sensitization of parents on the double-shift system is required for public acceptance and appreciation of the cost-effectiveness of these new dimensions of the education system.
An effective communication strategy with teachers and beneficiaries/communities is needed (and is being developed within the new project) to prevent inappropriate strategies or reversals in policy decisions.
37. Capacity building has had limited success. Capacity was narrowly perceived as a shortage of kills and was therefore addressed only by the borrowing of skills through technical assistance and by training.
Even this limited capacity building did not work well: long term technical assistants were underutilized and training was not based on a strategy for sector improvement or on identified priorities and was, therefore, often ad hoc. Capacity building needs to be seen as a broad-based participatory endeavor, in which in stakeholders and beneficiaries learn to maintain project activities.
38. The National Tender Board should receive training related to World Bank procurement methods.
39. The existence of a national education policy is important in maintaining continuity throughout implementation.
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9-Table 1: Summary of Assessments
A. Achievement of Objectives Subst Prial Nel bl Not wDlicable
Macro Policies 0
5
0Sector Policies 0
[
05
Financial Objectives 0 0 0]
Institutional Development a]
[
0 0Physical Objectives
[
0 0 0Poverty Reduction a[
5 (J
Gender Issues D
5
DOther Social Objectives a
5 5
sEnvironmental Objectives a a a
[mJ
Public Sector Management
5 5
aPrivate Sector Development
5 5 5
Other (specify)
5
a5 5
(Continued)
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10-B. Project Sustainability Likely Unlikey Uncertain
V%j El [
C. Bank Performance Satisfactory Satisfactor Deficient
(/) (V) (1)
Identification 3
i [
Preparation Assistance
1 [F] [
Appraisal
Ix El
Supervision
]
EXHighly
:D. Borrower Performance Satisfactory Satisfactory Deficient
(/) (/) (/)
Preparation
F
EImplementation
[ I]
Covenant Compliance
l [ E
Operation (if applicable)
E E E
E. Assessment of Outcome Satisfactory Satisfactory Unsatisfactory unsatisfactory
El (E)
O~~~~~~~E
Table 2: Related Bank Loans/Credits
Loan/credit title Purpose Year of approval Status
Preceding operations
1. First Education Sector Construct a technical 1978 Completed
project (Cr. 792-GM) institute management development institute,
2. Women in Improve women's 1990 Completed
Development (Cr. 2142- productivity and
income-GM) earning potential, improve
1. Participatory Health, Improve the quality of: 1998 Ongoing
Nutrition and Population reproductive health Project (Cr. 3054-GM) services, infant and child
health services, nutrition
2. Third Education Sector Increase access to basic 1998 Ongoing
Program (Cr. 3128-GM) education, promote girls' education, basic education
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12-Table 3: Project Timetable
Steps in Project Cycle Date Planned Date Actual/
Latest Estimate Identification (Executive Project Summary) 04/07/88 04/07/88
Preparation 10/06/88 10/06/88
Appraisal 06/03/89 06/03/89
Negotiations 05/04/90 04/09/90
Letter of Development/Sector Policy (if applicable) 04/12/90 04/12/90
Boardc Presentation 05/24/90 05/24/90
Signinig 06/26/90 06/26/90
Effectiveness 02/14/91 02/14/91
Midterm review (if applicable) 05/25/93 05/25/94
Project Completion 06/30/97 12/31/98
Loan Closing 06/30/97 8/31/99
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13-Table 4: Loan/Credit Disbursements: Cumulative Estimated and Actual (US$ million)
FY1991 FY1992 FY1993 FY1994 FY1995 FY1996 FY1997 FY1998 FY1999
Appraisal 1.3 4.1 7.3 9.3 11.3 13.1 14.1 0 0
estimate
Actual 0.8 1.9 3.8 6.5 10.8 13.1 14.3 14.8 15.7*
Actual as % 62% 46% 52% 70% 96% 100% 101%
of estimate
Date of final January
disbursement 20, 1999
At end of project, SDRI 1.3 was equivalent to $16.2 m
Table 5: Key Indicators of project Implementation
Estimated Actual
Key implementation indicators
1. Student enrollment 38,000 42,000
2. New classrooms built 600 600
3. Textbooks delivered 400,000 400,000
4. Intake capacity of
teachers for training 100 120
5. middle school revised 100,000 100,000
textbooks
6. Unqualified teachers 1,200 1,200
trained
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14-Table 6: Key Indicators for Project Operation
L H ~~~~There were no key indicators specified in the SAR or President's report
Table 7: Studies Included in Project
Study Purpose as defined at Status Impact of study
appraisal/redefined
1.PCU accounting manual Set up accounting system Completed Has improved the project financial management system . 2. Nationwide classroom Define norms for classroom Completed Helped in
construction study construction and develop an defining needs
associated program and improving
the planning process for classroom construction.
Adoption of classroom construction strategy 3. Textbook Revolving Fund To have sustainable textbook Completed Creating a
financing system textbook
revolving fund.
4. Audit of the Textbook Evaluate the efficacity of the Completed Decision to revise
Revolving Fund fund fund management
to resolve some ongoing problems.
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16-Table 8A: Project Costs
Appraisal estimate Actual/latest estimates
(US$ million) (US$ million)
Item Local Foreign Total Local costs Foreign costs Total
costs costs
Figures may not add up due to rounding
Table 8B: Project Financing
Appraisal estimate Actual/latest estimates
(US$ million) (US$ million)
Item Local Foreign Total Local costs Foreign costs Total
costs costs
* At end of project, SDRI 1.3 was equivalent to $16.2 m
** EU's financing was parallel and fully disbursed. IDA didn't manage these funds.
*** Thiis figure corresponds to an estimated conversion of the in-kind contribution of communities through labor and sand for school construction.
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17-Table 9: Economic Costs and Benefits
No efforts were made at appraisal to estimate net present value (NPV) or economic rate of return (ERR), and therefore there is no baseline against which to compare current estimates. Furthermore no parameters were given at appraisal with regard to cost effectiveness.
Table 10: Status of Legal Covenants (The Gambia) Second Education Sector Project (cr. 2142-GM)
Covenant Present Description of Covenant Comments
Agreement Type Status
3.03 (la) 5 C Borrower shall as from the start of its 1991/92 school year:
(a) begin to carry out the measures set out in an implementation plan satisfactory to the Association to increase the pupil/teacher ratio of the primary schools to 39:1 by the start of the 1996/97 school year.
3.03 (Ib) 5 C Begin to carry out an action plan satisfactory to the
Association to improve female enrollment and achievement in Gambian schools including: (i) measures to increase the number of women teachers, (ii) provision of gender-neutral teaching materials for schools, (iii) encouragement of girl pupils to take up and study science, technology, mathematics and other technical subjects, and (iv) the incorporation of family life education into the curricula of schools; and 3.03 (Ic) 5 C Begin to cany out a restructuring program satisfactory to the
Association for secondary general and technical education including the phasing out by the 1995/96 school year of all technical secondary schools.
3.03 (2) 5 C Borrower shall: (i) no later than March 31, 1991 (A)
complete a study to determine increases required in tuition and user fees for secondary schools and training levies for
secondary and vocational training programs and (B) based on the results of the study, furnish to the Association specific proposals satisfactory to the Association for increases in said fees and training levies; and (ii) as from the start of its
1991/92 school year begin in effect the said increases in fees and training levies.
3.03 (4a) 3 C Borrower shall not later than March, 1991: (a) furnish to the Association a detailed plan satisfactory to the Association which (i) provides for the establishment and operation of a textbook revolving fund into which textbook fees will be deposited; and (ii) specifies (A) Borrower's contributions to the textbook revolving fund, (BO arrangements for the collection of funds to be paid into the textbook revolving fund and the safeguarding of all funds paid therein; and (C) the means of conversion into hard currency of all paid-in
funds;
3.03 (4b) 5 C Duly establish and thereafter maintain, in place of the Borrower's National Vocational training Board, a National Council for Technical and Vocational training satisfactory to the Association in which ministries, employers and workers' organizations shall be adequately represented.
3.03 (4c) 5 CP Assign to technical assistance staff employed on the Project an adequate number of Gambian nationals with qualifications and experience satisfactory to the Association;
3.03 (4d) 9 C Furnish to the Association for its review and comments
MOE's draft rules for the Primary School Leaving Certificate (PSLC) and the Middle School leaving Certificate (MSLC) examinations; and
3.03 (4e) 5 C Enter into arrangements satisfactory to the Association for the carrying out by the West African Examination Council of responsibility for the design, administration and management of the PSLC and the MSLC examinations.
3.03 (5) 5 C Borrower shall, by June 30, 1991, adopt and publish rules for the PSLC and the MSLC examinations satisfactory to the Association
3.03 (6) 5 C Borrower shall assign competent volunteers from reputable
international and other organizations to supervise the work of mobile construction teams established under the Project
3.03 (7) 5 C Borrower shall: (i) continue to maintain he new
organizational structure of the MOE in a form satisfactory to the Association; and (ii) appoint to all senior positions of
MOE persons with qualifications and experience satisfactory to the Association
3.04 (a) 9 C Borrower and the Association shall, not later than April 30, 1991 and, thereafter, not later than April 30 of each subsequent year during which the Project is due to be executed, exchange views on the execution of the Project and the performance of their respective obligations under this Agreement.
3.04 (b) 9 C Not later than one month prior to each such exchange of
views, the Borrower shall furnish to the Association, for its review and comments: (i) a report on the execution of the Project, in such form and detail as the Association shall request; and (ii) such other report or document as the Association may reasonably require for purposes of each such exchange of views.
3.05 9 CD Borrower shall carry out jointly with the Association by
April 30, 1994 a mid-term review of the progress made in
-
3-achieving he objectives of the Project, including the reform measures described in the Borrower's education policy letter dated April 12, 1990 to the Association.
4.01 (b) I CD Borrower shall (i) have the records and accounts referred to
(i) in paragraph (a) of this Section including those for the
Special Account for each fiscal year audited, in accordance with appropriate auditing principles consistently applied, by independent auditors acceptable to the Association;
4.01 (b) 1 C Furnish to the Association, as soon as available, but in any
(ii) case not later than three months after the end of each such
year, a certified copy of the report of such audit by said auditors, of such scope and in such detail as the Association shall have reasonably requested; and
4.01 (b) (iii) I C Furnish to the Association such other information concerning said records, accounts and the audit thereof as the
Association shall from time reasonably request.
4.01 (c) (i) I C For all expenditures with respect to which withdrawals from the Credit Account were made on the basis of statements of expenditure, the Borrower, shall: maintain or cause to be maintained, in accordance with paragraph 9a) of this Section, records and accounts reflecting such expenditures;
4.01 (c) (ii) I C Retain, until at least one year after the Association has received the audit for the fiscal year in which the last withdrawal from credit Account as made, all records (contracts, orders, invoices, bills, receipts and other documents) evidencing such expenditures;
4.01 (c) (iii) I C Enable the Association's representatives to examine such records; and
4.01 (c) (iv) I C Ensure that every six months said auditors furnish to the Association an opinion as to whether the statements of expenditure submitted during such period, together with the procedures and internal controls involved in their
preparation, can be relied upon to support the related withdrawals.
Table 11: Compliance with Operational Manual Statements
Borrower complied with all Operational Manual Statements.
Table 12: Bank Resources: Staff Inputs
Planned Revised Actual
Stage of project cycle Weeks US$ Weeks US$ Weeks US$
Preparation to Appraisal 16 -- -- -- 55.0 134.7
Appraisal 32 -- -- -- 51.1 129.3
Negotiations through Board 28 -- -- - 8.4 20.8
approval
Supervision N.A. -- -- -- 75.7 275.8
Completion N.A. -- -- -- .6 0.5
Total 29.2 -- -- -- 196.2 561.1
Table 13: Bank Resources: Missions*
Stage of project cycle ACTUAL
Weeks US$
Preparation to Appraisal 5 12.25
Appraisal 9 20.25
Negotiation through Board N.A. N.A.
Approval
Supervision 69 169.05
Completion 2 4.9
Total 85 206.45
* Approximations based on average 2-wk. SPN missions ( $2.45/wk. Information was not captured electronically throughout most of the projet.
APPENDIX A Page 1 of 2
THE GAMBIA
EDUCATION SECTOR PROJECT IDA FINAL SUPERVISION MISSION
AIDE MEMOIRE December 8-11, 1998
An IDA mission comprised of Alassane Diawara (Mission Leader) and Serge Theunynck (Implementation Specialist) visited The Gambia from December 8 - 11, 1998, to carry out the final supervision mission of the Second Education Sector Project of which the closing date is December 31, 1998, and prepare the Implementation Completion Report (ICR). The mission also reviewed the status of the effectiveness conditions of the Third Education Sector Program and discussed Government's plan for project launch and its timing.
The mission held working sessions with the Honorable Secretary of State for Education and the Secretary of State for Finance, both permanent secretaries, and with the Staff in their Departmnents.
The mission expresses its sincere thanks to the staff of the PIU, the DoSE and the DoSFEA and to all other people it met for their cooperation. The mission also extends its thanks to former staff invited by the PIU for this occasion for their participation at different stages of the project. The aide-memoire summarizes the conclusions which will be confirmed by letter upon the mission's return.
SUPERVISION
Although the project had to be extended twice, all project activities have now been fully implemented.
Government proposes to use the remaining project funds for textbooks and the extension of the Gambia College.
a) Textbooks: the mission was informed that the Government still intends to use part of the outstanding funds to pay arrears owed to textbook suppliers given the malfunctioning of the textbook revolving fund. The mission agreed to consider a proposal for a contract amendment for the unpaid delivered textbooks, provided that the contract with the supplier be in accordance with the original bidding documents and that the payment could be done before credit closing.
b) Gambia College: the mission informed the Government that the Education II Credit can only be used for payment of contracts committed before the closing date.
IMPLEMENTATION COMPLETION REPORT
The draft ICR was discussed with the PIU and the current and former heads of components prepared by a Bank consultant. It was felt that strong emphasis should be put on factors which affected the project and the lessons learned. The comments received were noted and will be considered in the next version of the report which will be sent back to the Government for comments. The mission was informed that the Government's final evaluation of the project is under preparation and will be sent to the Bank before mid-January.
STATUS OF CONDITIONS OF EFFECTIVENESS
At the time of the mission, only one condition out of six of Third Education Project had been met for the credit effectiveness. The mission expressed its concern about the progress made in this area. The DoSFEA informed the mission that budgetary procedures would not allow for an initial deposit to the Project Account by December 21, 1998, one of the conditions of effectiveness. Consequently, the mission informed the Government to ask for an extension of the date for Credit effectiveness. The status of the conditions for effectiveness is as follow:
APPENDIX A Page 2 of 2
* Accounting Procedures of Manual: the consultant firm, KPMG Peat Marwick is currently working on the updating of the Accounting manual; the completion is scheduled for January 11, 1999.
* Recruitment of the auditor: the selection process is at the stage of technical evaluation. The PIU shared with the mission the letter of the Auditor General related to the technical evaluation and the mission informed the PIU that the information requested in the previous correspondence still needs to be submitted to IDA for non objection.
* Framework agreement with GAMWORKS: the mission received the revised version which shows substantial progress. However, some portions of the agreement still need to be revised and sent to the Bank.
* Service Agreements with Gambia College and WAEC: IDA's comments sent to Government were discussed. A final version will be sent by the Government by December 16.
* Banjul Skill Center: the condition is satisfied.
* Project Account and initial deposit: the initial deposit cannot be deposited before next fiscal year.
The mission reviewed the proposed budget of the Education Sector currently submitted to the parliament for approval. The mission was informed by the Permanent Secretary of DoSE that the proposed 1999 total budget is reduced compared to the 1998 budget. The mission did not have adequate time to assess the analysis of the budgetary period of 1998 and 1999 respectively and wishes to be informed of the comparison made by the PPARBD. The Secretary of State and Permanent Secretary of DoSFEA confirmed Government's commitment and gave assurance that the budget allocation will be consistent with the Education Sector priorities and that the
efficiency measures will also be taken as recommended by the Education Sector PER.
The mission also discussed with the Government the launching of the Third Education Sector Program. A tentative launch date is scheduled for January 24-25, 1999 .If the credit is effective, the Bank will participate in the launching activities. The mission and other Development partners asked to be informed of the timing as well as areas of program concentration to enable the Bank to develop a program. It is hoped that the partners associated with the sector program will participate in different areas according to their comparative advantage and to the benefit of the sector approach adopted by the Government.
Prepared in Banjul December 11, 1998
For the World Bank Mission For the Department of State for Education
Alassane Diawara Dr. Saja Taal,
Mission Leader Permanent Secretary
APPENDIX B Page 1 of 8
EDCUATION SECTOR PROJECT IDA CREDIT 2142-GM
IMPLEMENTATION COMPLETION REPORT
JANUARY 1999
COMPILED BY
LAWRENCE BRUCE PROJECT MANAGER EDUCATION SECTOR PROJECT DEPARTMENT OF STATE FOR EDUCATION
BANJUL, THE GAMBIA
APPENDIX B Page.2 of 8
BIBLIOGRAPHY
Policy Docunents Volume 1 - Education, DOSE, Republic of The Gambia. 1998
Staff Appraisal Report, The Gambia Education Sector Project. The World Bank, April 30, 1990
Development Credit Agreement, Second Education Sector Project, between The Republic of The Gambia and the International Development Association. June 29, 1990
Aide Memoires, Second Education Sector Project. June 21, 1989 - December 8 - 11, 1998.
Evaluation of the Pilot Project Girls Education YE 923 - 01 Adelaide Sosseh-Gaye and Louise Sowe Holbrook, November, 1995.
APPENDIX B Page 3 of 8
Summary
This report is based on an evaluation of the Second World Bank Education Sector Project CR 2142-GM, uncdertaken on behalf of the borrower.
Methodology: The evaluation exercise, which lasted for a month, was carried'out through document reviews; interviews with key personnel; focus group discussions with beneficiaries and on site surveys.
Purpose: To prepare a report which would assess the Project's achievements and shortcomings, analyze implementation results and provide useful lessons for all stakeholders.
The Project was designed to help implement a program of educational reform and restructuring that would expand access to and improve the quality of education and training and maximize the allocation and use of available resources. It had four major objectives:
i. Expand and improve the quality of primary education.
ii. Restructure and improve the quality of secondary education.
iii. Strengthen skills training.
iv. Strengthen key education sector institutions.
Achievement of objectives: The objectives of the project were substantially achieved. Nearly all targets were met.
Enrollments at the primary level increased significantly to the extent that 58,771 school places were created as against the 38,000 planned. Female enrolments at this level increased from 41% to 44%. The Gross Enrollment rate was 70% exceeding the target of 62%.
The secondary technical schools were phased out and a 6-3-3 system of schooling was introduced. The transition rate from the primary to the junior secondary level increased from 35% to 70% as against a target of 60%.
At the teacher education level the number of female teacher trainees for the Primary Teachers Certificate Course was increased to 40%. In addition 1259 unqualified Teachers were upgraded to become qualified
At the teacher education level the number of female teacher trainees for the Primary Teachers Certificate Course was increased to 40%. In addition 1259 unqualified Teachers were upgraded to become qualified