Document of The World Bank FOR OFFICIAL USE ONLY
Report No. 19269
IMPLEMENTATION COMPLETION REPORT
REPUBLIC OF TEE GAMBIA
EDUCATION SECTOR PROJECT (CREDIT No. 2142-GM)
June 29, 1999
Human Development II Africa Region
This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.
Public Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure Authorized
CURRENCY EQUIVALENTS
Currency Unit =Dalasi
Appraisal in June 1989: US$ 1.00 = D 8.10 Closing in December 1998: US$ 1.00 =D1O.60
WEIGHTS AND MEASURES Im = 1.09 yd I sq.m= 10.76 sq.ft.
ABBREVIATIONS AND ACRONYMS AATG - Action Aid The Gambia
APL - Adaptable Project Lending BSC - Banjul Skills Center BSTC - Basic Teachers Certificate
BPMRU - Book Production, Materials and Resources Unit
B.S. Bachelor of Science
CCF - Christian Children's Fund
CIDA - Canadian International Development Agency CRDC - Curriculum Research Development Centre CRS - Catholic Relief Services
DOSE - Department of State for Education (previously MOE) ECCD - Early Childhood Care and Development
EFA - Education for All
EU - European Union (Previously called EEC)
GAMWORKS - Gambia Agency for Implementation of the Public Works GTU - Gambia Teachers Union
GTTI - Gambia Technical Training Institute FIOH - Future In Our Hands
HND - Higher National Diploma
MSLCE - Middle School Leaving Certificate Examination MOE - Ministry of Education (presently called DOSE) PCU - Project Coordinating Unit
PIU - Project Implementation Unit PRA - Participatory Rural Appraisal PTA - Parent-Teachers Association PTC - Primary Teachers Certificate PTR - Pupil Teacher Ratio
PSLCE - Primary School Leaving Certificate Examination RIFT - Remedial Initiative for Female Teachers
TANGO - The Association of Non Governmental Organizations TBFC - Text Book Fund Coordinator
TBRF - Text Book Revolving Fund UNICEF - United Nations Children's Fund
UNFPA - United Nations Fund for Population and Activities UQT - Unqualified Teachers
VSO - Voluntary Services Overseas FISCAL YEAR January I - December 31
Vice President Jean-Louis Sarbib
Country Director Mahmood A. Ayub
Sector Manager Nicholas Burnett
Team Leader Alassane Diawara
IMPLEMENTATION COMPLETION REPORT REPUBLIC OF THE GAMBIA
EDUCATION SECTOR PROJECT (CREDIT NO. 2142-GM)
CONTENTS PREFACE
EVALUATION SUMMARY
PART I: PROJECT IMPLEMENTATION ASSESSMENT ... 1
A. PROJECT OBJECTIVES ... 1
B. ACHIEVEMENT OF PROJECT OBJECTIVES ... 2
C. IMPLEMENTATION RECORD AND MAJOR FACTORS AFFECTING THE PROJECT ... 4
D. PROJECT SUSTAINABILITY ... 5
E. BANK PERFORMANCE ... 5
F. BORROWER PERFORMANCE ... 6
G. ASSESSMENT OF OUTCOME ... 6
H. FUTURE OPERATION ... 7
I. KEY LESSONS LEARNED ... 7 PART II: STATISTICAL TABLES
Table 1: Summary of Assessments Table 2: Related Bank Loans/Credits Table 3: Project Timetable
Table 4: Credit Disbursements: Cumulative Estimated and Actual Table 5: Key Indicators for Project linplementation
Table 6: Key Indicators for Project Operation Table 7: Studies Included in Project
Table 8A: Project Costs Table 8B: Project Financing
Table 9: Economic Costs and Benefits Table 10: Status of Legal Covenants
Table 11: Compliance with Operational Manual Statements Table 12: Bank Resources: Staff Inputs
Table 13: Bank Resources: Missions Appendices:
A. Mission's aide-memoire
B. Borrower contribution to the ICR Map: IBRD 22248
This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank
authorization.
IMPLEMENTATION COMPLETION REPORT REPUBLIC OF THE GAMBIA
EDUCATION SECTOR PROJECT (CREDIT NO. 2142-GM)
Preface
This is the Implementation Completion Report (ICR) for the Education Sector Project in The Gambia, for which Credit 2142 in the amount of SDR 11.3 million (US$14.6 million equivalent) was approved on May 24, 1990 and made effective on February 14, 1991.
The Credit was closed on December 31, 1998. It was fully disbursed, and the last disbursement took place on January 20, 1999. Cofinancing for the project was provided by the European Union (EU).
The ICR was prepared by Alassane Diawara, Task Manager (AFMSN); Aissa Chipkaou, Task Assistant (AFTH2), with input from former Task Manager Rosemary Bellew (AFTH3). It was reviewed by Mahmood A. Ayub, Country Director for The Gambia (AFC 14); Nicholas Burnett, Sector Manager, Robert Prouty, Cluster Leader, and Myrina McCullough, Program Assistant (AFTH2).
The ICR is based on information gathered during the final supervision mission (December 8, 1998) and on material in the project file. The Borrower contributed to its preparation by providing comments on the draft ICR prepared during the final supervision mission, and by preparing its own evaluation which is in Appendix B. The ICR was sent to the Borrower for comments on April 7,1999.
IMPLEMENTATION COMPLETION REPORT REPUBLIC OF THE GAMBIA
EDUCATION SECTOR PROJECT (CREDIT NO. 2142-GM) EVALUATION SUMMARY
INTRODUCTION
1. IDA's strategy in The Gambia supports three main objectives: (a) to establish a macroeconomic and private sector environment conducive to economic growth; (b) to rehabilitate and develop
infrastructure, and (c) to improve basic social services, particularly for women and the poor.
2. The principal instruments used in supporting IDA objectives in the country have been adjustment operations (Structural Adjustment Credits I and II), buttressed by sector-based rehabilitation and
investment projects. As of April 30, 1999, IDA had approved 25 projects for The Gambia for a total of about US$224.8 million, with an undisbursed amount of about US$53 million. The portfolio in April
1999 consisted of four projects: Environment Management Capacity Building, Participatory
Health/Population/Nutrition, Third Education and the Poverty Alleviation and Municipal Development.
The Third Education Project which was approved by the Board on September 10, 1999, became effective on March 22, 1999; also the Poverty Alleviation and Capacity Building Project, approved on March 16, 1999, is expected to become effective before the end of FY99.
PROJECT OBJECTIVES
3. Project Objectives. The principal objective of the project was to increase access to, and improve the quality and efficiency of, education in a sustainable, cost-effective manner. Specifically, the project objectives were to: (a) expand and improve the quality of primary education; (b) restructure and improve the quality of secondary education; (c) strengthen the skills training programs; and (d) reinforce the Ministry of Education's planning and management capacities.
4. Project Description and Components. These objectives were to be achieved through a series of policy measures and an investment program. The package of policy measures included:
* Raising the primary pupil:teacher ratio from 30:1 to 45:1 by 2003 by consolidating schools, introducing double-shift and multi-grade teaching, and retraining specialist teachers;
* Creating a more equitable salary structure for primary teachers;
* Reallocating Government budgetary resources to the education sector by increasing education's share of the Government budget from 20.5% in 1989/90 to 22.4% by 1997;
* Increasing annual expenditure on primary education by 6% in real terms, holding other sub-sectors at 1-3%;
* Increasing user fees in secondary schools, providing support to madrassas, and introducing a levy for vocational and technical education;
* Lowering the school entry age, increasing the proportion of female trainee teachers to at least 30%, eliminating sexual bias in textbooks, developing gender awareness training for teachers, encouraging
ii
girls to enroll in science, math and technical courses, and incorporating famnily life education into school curricula; and
Restructuring secondary education while phasing out technical schools.
5. The Investment Component. The Project included 4 components with 10 sub-components, viz:
(a) expand and improve the quality of primary education; (b) restructure and improve the quality of secondary education; (c) strengthen skills training; (d) strengthen key sectoral institutions.
6. Evaluation of Objectives. For the most part, the project's objectives were clear, realistic and important for the country. They remained unchanged throughout implementation. A mid-term review in May-June 1994 concluded that no major adjustments to the scope and content of the project were
necessary. However, no clear target performance indicators or implementation plans were associated with the objectives at the start of the project.
IMPLEMENTATION EXPERIENCE AND RESULTS
7. Assessment of Project's Success and Sustainability. The objectives of the project were satisfactorily achieved in most areas. The achievement of policy measures was partial.
8. Primary enrollment grew by an average 8% per year from 1990. Girls' education was achieved partially though with much delay because activities and strategies had to be defined. Girls' enrollment in primary school increased from 40% in 1989/90 to 44% in 1997.
9. Restructuring of the secondary education system was substantially achieved. About 400,000 text books were published, purchased, and delivered to schools under the textbook rental scheme.
Achievement of quality improvements was marginally satisfactory.
10. On the whole, project achievements are likely to be sustained. Demand for education is high, and the policy framework for the next 10 years builds on the achievements and lessons learned from this project. For example, the framework places an emphasis on infrastructure maintenance to sustain the physical investments, lowers the cost of education, particularly for girls, delegates part of the school building program to NGOs so as to combine benefits provided by community participation with appropriate management, and continues the policy priorities to improve resource use.
11. Summary of Costs. Total project cost was estimated at US$ 21.2 million. IDA financed 69%
(US$ 14.6 million). The EU contributed US$ 3.0 million, communities US$2.5 million, and Government US$1.1 million (figures may not add up do to rounding).
12. Implementation Schedule. All project activities were completed within the timeframe of the project with the exception of the equipment for the Banjul Skills Center (BSC). The project was extended twice, primarily to allow funding for the preparation activities of the follow-up project.
13. Analysis of Key Factors Affecting Major Objectives. Factors which positively influenced project implementation included: (a) Government's strong commitment to develop the education sector;
(b) budgetary allocations, available counterpart funds, and good accounting and disbursement practices;
(c) efforts made in most cases to recruit competent and committed staff; (d) the comprehensive policy framework adopted as national policy, which helped maintain a common framework and direction during the many periods of staff changes and (e) flexibility on the part of IDA. Factors which negatively
affected the project included: (a) the unanticipated difficulty of coordinating available community labor with the procurement and delivery of materials to the various sites; (b) the national policy of low
iii
threshold for tender board review (D10,000 equivalent to US$1,000), which delayed small local purchases of goods and services; and (c) the change in Government in July 1994 which introduced new personnel in the MOE with the ensuing loss of institutional memory and changes in operating procedures.
14. Assessment of the Bank's Performance. The overall performance of the Bank was satisfactory.
Project supervision and follow up by the Bank was regular and thorough. Progress of project
implementation was well-documented and reported by Bank missions to both Government and Bank officials. Bank disbursements were very prompt, and at no time were problems encountered by the borrower in this regard.
15. Relations with the MOE (now DOSE) and the co-financiers were excellent throughout.
16. Assessment of Borrower's Performance. The level of Government involvement in the preparation of the project was satisfactory. Relevant personnel were consulted. However, beneficiary input was inadequate, resulting in poor planning of its implementation. The Project Management Unit (PMU) satisfactorily administered, managed and coordinated the project's activities. Detailed progress reports were submitted to the Bank as regularly as expected. The Government financial contribution was
paid regularly. One issue that remained a serious concern was the operation and maintenance of the Textbook Revolving Fund. Starting off impressively, the Fund later suffered from poor management, resulting in the exhaustion of the healthy reserves it had generated in the first few years of its
establishment.
17. Assessment of Project's Outcome. The overall project outcome is satisfactory. It provided inputs as planned. The objective of the primary school building program was achieved, increasing seats for primary school students throughout the country. Student enrollment has increased, exceeding
projected figures. Primary school curricula have been revised and new ones designed for middle schools.
Appropriate instructional materials were developed, produced, and distributed in the school system.
Administrative and managerial capacity has improved at central and divisional/regional levels. The elimination of unqualified teachers from the system was not realized however. Multi-grade and double- shift teaching as a means of saving costs, improving efficiency, and enhancing student achievement has been limited in scope and has not been taken seriously as a sector policy.
SUMMARY OF FUTURE OPERATIONS AND KEY LESSONS LEARNED
18. Future Operation and Sustainability. A more comprehensive Third Education Sector project seeking to consolidate and build on what has been achieved to date was approved by IDA's Board in
September 1998. It became effective in March, 1999. The new project, which was the first Adaptable Program Lending (APL) in the Africa Region, will ensure sufficient numbers of well-qualified teachers, increase access through the classroom construction program, expand opportunities and strategies to
increase girls enrollment, and expand vocational and technical training.
19. Lessons Learned. Key lessons learned during project implementation and incorporated into the new Third Education Project:
* 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).
iv
* It was difficult to coordinate community volunteer labor with the supply of materials. Future
education projects that involve classroom construction should consider NGO involvement to organize community labor contributions through contract agreements with the DOSE.
* The use of large national contractors for small contracts for classroom construction throughout the country gave mixed results. Future similar projects should allow the option of using a Contract Management Agency, which would be better able to manage numerous small contracts.
* 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 to prevent inappropriate strategies or reversals in policy decisions.
* Capacity building has had limited success. Capacity was narrowly perceived as a shortage of skills 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.
* The National Tender Board should receive training related to World Bank procurement methods.
• The existence of a national education policy is important in maintaining continuity throughout implementation.
IMPLEMENTATION COMPLETION REPORT REPUBLIC OF THE GAMBIA EDUCATION SECTOR PROJECT
(CREDIT NO. 2142-GM)
PART I. PROJECT IMPLEMENTATION ASSESSMENT
A. PROJECT OBJECTIVES
I . The principal objective of the project was to increase access to and improve the quality and efficiency of education in a sustainable, cost effective manner. Specifically, the project objectives were (a) to expand and improve the quality of primary education; (b) to restructure and improve the quality of
secondary education; (c) to strengthen the skills training programs; and (d) to reinforce the Ministry of Education's planning and management capacities. The project assisted the Government in implementing a specific investment program supported by reform in sectoral policies.
2. The package of policy measures supported by the project were designed to (a) improve efficiency and effectiveness in the use of sector resources; (b) promote development of private initiatives and
financing in education; (c) increase opportunities for girls; and (d) improve quality and cost-effectiveness of the secondary education system.
These objectives were to be achieved through a series of 10 policy measures and an investment program.
The package of policy measures included:
Raising the primary pupil:teacher ratio from 30:1 to 45:1 by 2003 by consolidating schools, introducing double-shift and multi-grade teaching, and retraining specialist teachers;
Creating a more equitable salary structure for primary teachers;
- Reallocating Government budgetary resources to the education sector by increasing education's share of the Government budget from 20.5% in 1989/90 to 22.4% in 1997;
* Increasing annual expenditure on primary education by 6% in real terms, holding others sub-sector at 1-3%;
* Increasing user fees in secondary schools, providing support to madrassas, and introducing a levy for vocational and technical education;
* Lowering the school entry age, increasing the proportion of female trainee teachers to at least 30%, eliminating sexual bias in textbooks, developing gender awareness training for teachers, encouraging girls to enroll in science, math and technical courses, and incorporating family life education into school curricula; and
* Restructuring secondary education while phasing out technical schools.
3. The investment component included 4 components with 10 sub-components, viz:
(a) Expand and improve the quality of primary education: (i) increase enrollment by creating 30,000 places by constructing 600 classrooms and renovating 200, and 8,000 places by introducing double-shift and multigrade teaching; (ii) develop revised syllabi; (iii) publish and provide about 400,000 revised textbooks and teacher guides for a student:book ratio of 2:1, and introduce a textbook rental system; (iv)
-2-
upgrade about 1,200 unqualified teachers; and (v) increase the intake capacity of pre-service training to 100.
(b) 'Restructuring and improving the quality of secondary education: (i) convert the secondary school system into a unified system of middle and secondary school (3 years each) and convert 17 technical secondary schools into lower secondary (middle) schools, equipping them with science teaching facilities;
and (ii) revise middle school syllabi and books and provide about 100,000 textbooks and teacher guides.
(c) Strengthening skills training: establish a National Council for Technical Education and Vocational Training (NCTEVT) with employer and worker representatives, improve program content and training facilities at the Gambia Technical Training Institute (GTTI) and the Banjul Skills Center (BSC), and introduce training levies in 1991/92.
(d) Strengthening key sectoral institutions: (i) establish a new administrative structure, (ii) strengthen educational planning and management capacities of the Ministry of Education (MOE), and (iii) introduce syllabus-based local exams for primary and middle school completion, continuous assessment for gr. 1-9, and develop a feedback mechanism to monitor student performance.
4. Total project cost was estimated at US$ 21.2 million. IDA financed 69% (US$ 14.6 million). The EU contributed US$ 3.0 million, Communities US$2.5 million, and Government US$1.1 million.
5. Evaluation of Objectives. For the most part, the project's objectives were clear, realistic and important for the country. They remained unchanged throughout implementation. A mid-term review in May-June 1994 concluded that no major adjustments to the scope and content of the project were
necessary. It should be noted, however, that in some cases neither performance indicators relative to the objectives nor implementation plans were identified at the start of the project. This was particularly true for policy measures (double-shift and multigrade teaching, girl's education), and particularly those not backed up by any investment (girl's education, promotion of private sector, training levy). This contributed to a slower start up and implementation in these areas.
6. In retrospect, the overall level of risk that the project presented to Government was low. Although the risk of achieving some objectives (increased cost recovery and double-shift teaching) may have been higher, they were eventually accepted by parents and teachers. Initially, parents were confused by the change, and teachers were made to work double shifts without adequate compensation. The system was not fully ready for the transition when it occurred. There was no provision in the budget to give
incentives to teachers for their double efforts, and teachers threatened to leave. Government had to find extrat funds to cover the additional costs of teachers' time.
B. ACHIEVEMENT OF PROJECT OBJECTIVES
7. Objectives were partially achieved. The improved pupil-teacher ratio did not result in efficient resouirce use because the MOE continued to over-recruit often unqualified teachers, and specialized teachers (Koranic and home economics) were not re-trained. Promotion of private initiatives and
financing was partially achieved and cost recovery increased in primary and secondary schools. Support to madrassas was only implemented in 5 pilot schools because most MOE senior officers claimed that madrassas were not interested in the cost-recovery scheme. Information on this is conflicting. The training levy was introduced, but the funds collected were deposited into the Treasury and never used to fmance training.
8. Education expenditure - Education's share of Government recurrent expenditure increased to about 22% by 1996/97. In real terms, the average annual growth rate was twice that expected, but the sector budget allocations did not always correspond to the identified priorities.
9. Girls' education was achieved partially and with much delay, mainly because activities and strategies needed to be defined (except family life which was already under implementation with UN support). Before 1995, female candidates for teacher training -- less than 10% -- did not increase as expected because the Gambia College would not lower the entry qualifications which women often did not meet. In 1995, funds were allocated to support a remedial program for women admitted with low qualifications (RIFT). Since then, due to this very successful and cost-effective program, women's share of enrollment in Gambia College has increased to 40%. Textbooks were revised to lower gender
stereotypes and bias, although they require further revision. A gender awareness module was introduced in pre-service teacher training.
10 With the exception of sponsoring five girls a year to math camp in Ghana, little systematic effort was made to encourage girls to enter math, science and technical subjects. Parallel to this, UNICEF supported a sensitization campaign about the benefits of girls' education, but this endeavor was of little success. UNICEF plus IDA projects built latrines for girls in school. Many consider that this latrine program played an important role in reducing parent' reluctance to school their daughters. An IDA grant supported research and training in participatory methods to identify the main barriers to girls' education.
The findings showed that the main barrier by far to both enrolling and remaining in school was the cost of education. This was followed by the lack of access to middle school, teenage pregnancy, and early marriage in the upper grades. The main impediment- cost- was not addressed by the program, and indeed increased cost recovery worked against this objective. Girls share of enrollment increased from only 40%
to 44% in 1997.
11. Expansion of primary education. Primary enrollment has grown by an average 8% a year since 1990. In 1996/97, 42,000 more students were enrolled than in 1990/91. This achievement greatly surpassed the project objective to accommodate 38,000 additional students.
12. Achievement of quality improvements was only marginally satisfactory. In fact there are no mechanisms to evaluate it. The project defined the quality of education in terms of inputs -- mainly textbooks and teacher training. Textbook publishing was largely kept to schedule, but fewer books were revised than originally envisioned. A textbook rental system was introduced for grades 1-9. For the first three years, sufficient books were delivered to schools in a timely manner, and about 85% of fees were recovered. However, the textbook ratio of 2:1 was not achieved in many rural schools due to the inability
or unwillingness of parents to pay for books. Starting in about 1994, management deteriorated significantly. Over-ordering of books and leakage along the chain depleted the revolving fund. In addition, Government never deposited the funds intended to cover the cost of the marginal increase in enrollment. At project end, the Government decided to provide text books free of charge at primary level and to privatize the management of the textbooks rental system at secondary level. At least 1,200 uncertified teachers were upgraded to certificate level. Gambia College increased its intake capacity in teacher training and now takes in 120 new students a year. Nonetheless, the proportion of uncertified teachers in the system continues to increase due to the steep student enrollment growth relative to Gambia College graduates, coupled with the inefficient use of existing teachers.
13. Restructuring of the secondary education system was substantially achieved. Two three-year cycles--middle school (grades 7-9) and senior secondary (grades 10-12)--were introduced in 1993. The
17 secondary technical schools were converted to middle schools, and science demonstration labs were constructed. Curricula and books for the middle school were revised focusing on general education.
- 4-
About 400,000 textbooks were published, purchased, and delivered to schools under the textbook rental scheme.
14. In VET, achievement of the development objectives set up by the Government is largely unsatisfactory. Although the NCTEVT was established in 1992 and the training levy consequently created in 1994, the money collected was not used by the Ministry of Finance to finance vocational training because the system for resource allocation was never developed or adopted by the Government.
Investrnents in the BSC, an annex of GTTI, were only completed in 1998 as a condition for the
effectiveness of the next credit. Reasons for the delay include: lack of interest of GTTI in taking it over, and contractor default. Since management was shifted in 1989 to GTTI, the Institute used the facility to provide remedial education to upgrade students to enter GTTI, rather than provide basic skills training in the areas agreed. This situation was remedied in 1998 with the opening of 6 basic courses for about 20 students each with a cost-recovery of about 30%.
15. Improved management and administration was satisfactorily achieved. A Sector Management Team was established. Although it functioned irregularly, it was revived in 1996 and continues. The result is better collaboration across divisions and better information flows. Training abroad for three planners significantly improved the capacity of the planning unit. Technical assistance for planning was
also effective and helped to computerize education statistics which did not exist before. The Department's ability to collect and maintain up-to-date and reliable educational data and statistics has improved
significantly. Coordination between the Planning Unit and the Project Management Unit has improved since 1996 and is currently effective. Some amount of decentralization has been effected. Regional offices have become less reliant on headquarters in terms of planning, decision making, and
administration at that level.
16. In other areas, such as the architects in the construction program and the consultant for the vocational training program, technical assistance was less effective. Technical assistants were often not assigned counterparts and were not integrated into the units. Instead, they were assigned to a specific tasks resulting in little transfer of competence.
17. The performance of the PMU in managing project implementation was generally satisfactory with two exceptions: accounting during the first year and procurement in the first two years. Recruitment by Government of a national accountant was delayed and the person eventually appointed was a retired civil
servant, lacking necessary experience. Procurement matters were thus delayed for some months and necessitated recourse to continued technical assistance. Since 1993, when Government of appointed a
competent accountant and hired a capable national procurement specialist, accounting and procurement performance of the PMU improved to a satisfactory level.
C. MAJOR FACTORS AFFECTING THE PROJECT
18. Factors which positively influenced project implementation included:
Government had a strong commitment to develop the education sector. This was reflected in
budgetary allocations, efforts made in most cases to recruit competent and committed staff, adequate and available counterpart funds, good accounting and disbursement practices, and later good
procurement staff. The comprehensive policy framework. adopted as national policy, greatly helped to maintain a common framework and direction during the many periods of staff changes.
* Frequent supervision missions in the early stages helped to improve the planning of project activities and define those components which had no clear strategy, objective, or plan. Further, they helped to maintain a policy dialogue so that activities remained in line with overall objectives.
* The community participation embodied in the initial classroom construction strategy (1991-95) is considered by the forner Directors within the MOE to have provided high visibility to the
Government's commitment to education and stimulated parents' response. The shift in the classroom construction strategy from community labor to contracting out reduced the management burden on the PMU.
* More generally, there was a flexibility on the part of IDA and Government to adjust strategies when outcomes were not as expected as in the case of extra support for girls' education.
19. Factors which negatively affected the project included:
* The initial strategy for classroom construction, based on a combination of community labor and delivery of materials procured by the MOE through ICB, encountered problems. Community mobilization was satisfactory despite limited consultation. Three difficulties were encountered here.
The first concerned the seasonal availability of volunteer labor, the second concerned the logistical difficulty of PMU delivery of materials to the various sites throughout the country, and the third concerned the difficulty of coordinating materials purchased through ICB locally. Locally-based PMU support teams had good technical skills but lacked experience in community mobilization.
Classrooms built under this approach took an average of 2.3 years to complete. The shift to contracting labor through national enterprises increased classroom construction though not
completion time, which averaged 2.1 years. This was attributed to contractors' weak capacity and the continuation of difficulties in the supply of materials.
- The low threshold for tender board review (D10,000 equivalent to US$ 1,000) delayed small local purchases of goods and services. Despite repeated recommendations by IDA, Government remains reluctant to increase the ceiling.
- The change in Government in 1994 brought about important changes in key personnel in the MOE, which meant the loss of institutional memory and changes in operating procedures. This created setbacks in project achievements in many areas, notably the textbook procurement schedule and rental system, understanding of the policy framework and sector objectives. By that time, however, the main investments of the project had already been made.
D. PROJECT SUSTAINABILITY
20. On the whole, project achievements are likely to be sustained. Demand for education is high and the policy framework for the next 10 years builds on the achievements and lessons learned from the previous framework. For example:
- developed comprehensive expenditure framework;
- budgetary allocations and sustained policies of improving resource use and subsidies reduction;
- improved decision-making process based on optimal resource use and expenditure analysis;
- emphasis on infrastructure maintenance to sustain the physical investments.
- 6-
21. The Textbook Rental Scheme (TRS), which was poorly administered and managed towards the end of the project, is one activity that Government cannot sustain due to the administrative and
management weaknesses and inefficiencies that have plagued it. The Revolving Fund has been totally depleted and about US$ 600,000 of rental fees remain uncollected. The successor program will provide primary textbooks free of charge and privatize the management of the TRS for secondary school
textbooks. Sustaining quality at the primary level will require refresher training of older certified teachers (who didn't receive pre-service training) in the maintenance of their book supply.
E. BANK PERFORMANCE
22. Overall performance of the Bank was satisfactory. Project identification was consistent with the development strategy of both Government and the Bank. Project design was consistent with the
Government's Education Sector Policy Framework (1988-2005) and enhanced by good sector work.
23. Project supervision by the Bank was regular and thorough particularly until 1994. Two to three supervision missions per year were undertaken. Records indicate that a total of fifteen missions took place from 1991 to 1997. Mission teams were comprised of a good mix of experts in relevant areas with clearly defined tasks. A mid-term review was conducted in May-June 1994, a little later than planned in the SAR. Overall, Bank assistance to the project was adequate and highly useful. Project implementation progress was well-documented and reported by Bank missions to both Government and Bank officials.
Any lapses in implementation found by Bank missions were shared with relevant government officials for remedy.
24. Bank disbursements were very prompt, and at no time were problems encountered by the borrower in this regard. Relations with the MOE (now DOSE) and other co-financiers was excellent throughout.
Cordial and fruitful meetings were held between Bank missions, government officials, and other donors to share findings and seek agreement on project related issues. Actions agreed to during missions by
G'ambian government officials, were followed up consistently by Bank staff.
25. There were no significant deviations from Bank policies and procedures. Bank staff showed understanding and flexibility and accommodated requests by the Borrower for reasonable modifications to the project.
F. BORROWER PERFORMANCE
26. The level of Government involvement in the preparation of the project was satisfactory and relevant personnel were consulted. However, beneficiary input was inadequate and community in-kind contributions disorganized, resulting in poor planning of project implementation. In the early years of the project, borrower performance was not very satisfactory. Delays were experienced in the classroom construction activities due to delays in Tender Board approval and logistical problems. By mid-term, performance had improved considerably. The Government financial contribution was paid regularly.
27. The Project Management Unit (PMIU) satisfactorily administered, managed, and coordinated project activities. Detailed progress reports were submitted to the Bank as regularly as expected.
Activities were systematically monitored as they progressed, but performance indicators were not usually maintained. Issues resulting from weak contractor performance were correctly handled by the PMU which terminated the contracts, seized the bond performance guarantee and, in one case, pursued a lawsuit to recover the amount owed by the contractor.
28. The Government's interest in and support for the project remained steadfast. It increased budgetary allocations to the sector over the period and lived up to the loan commitments/covenants it made with regard to sector policy changes and institutional refonns.
G. ASSESSMENT OF OUTCOME
29. The overall project outcome is satisfactory. It has provided the inputs as planned. The objective of the primary school building program was achieved, resulting in the expected increase of seats for primary school age students throughout the country. Student enrollment increased, exceeding projected figures. Primary school were revised and new ones designed for middle schools. Appropriate
instructional materials were developed, produced and distributed in the school system accordingly.
Secondary education has been restructured and educational planning strengthened. Administrative and managerial capacities have been augmented at central and divisional/regional levels.
30. The elimination of the large number of unqualified teachers in the system was not realized.
Unqualified teachers still constitute a significant proportion of the teaching force at the primary level.
The qualitative improvement in the teaching and learning in primary schools is difficult to assess. Despite the timely provision of sufficient instructional materials, the expected proportion of students having access to them was not achieved partially due to the fact that the poor could not afford the rental fee. Also the textbook rental system failed to be sustainable.
31. Multi-grade and double-shift teaching as means of saving costs, improving efficiency, and
enhancing student achievement has been limited in scope and not taken seriously as a sector policy. More dialogue is clearly needed on these different pedagogical methodologies, and the new education project includes this dialogue in its mandate.
H. FUTURE OPERATION
32. A more comprehensive Third Education Sector Project which seeks to consolidate and build on what has been achieved to date was approved by IDA's Board in September 1998. It became effective in March, 1999. The new project was the first APL in the Africa Region, covering the first phase of the
Government's 1 0-year program. Among other things, the classroom construction program will be expanded, opportunities and strategies to increase enrollment of girls will be expanded and vigorously pursued, vocational and technical training will be developed and teacher quality and supply.
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.
- 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.
- 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)
- 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,
training center for nurses, secondary school workshops, three regional
education centers, and equipment planning unit.
2. Women in Improve women's 1990 Completed
Development (Cr. 2142- productivity and income-
GM) earning potential, improve
women's welfare and status, strengthen
government institutions to enable them to better integrate women's issues in their work and contribute to bringing about a change in Gambian society's perception of the role of women
Following operations
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 services for women of reproductive age, infants and children, and management and
implementation of a health program.
2. Third Education Sector Increase access to basic 1998 Ongoing
Program (Cr. 3128-GM) education, promote girls' education, basic education quality, early childhood development and care, increase secondary education enrollment, improve vocational and technical education, develop plan to upgrade
existing post-secondary programs to degree level, promote adult education
and capacity building for sector management.
- 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
- 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 $16.2 m
Table 5: Key Indicators of project Implementation
Estimated Actual
Key implementation indicators
1. Student enrollment 38,000 42,000
2. New classrooms built 600 600
3. Textbooks delivered 400,000 400,000
4. Intake capacity of
teachers for training 100 120
5. middle school revised 100,000 100,000
textbooks
6. Unqualified teachers 1,200 1,200
trained
- 14-
Table 6: Key Indicators for Project Operation
L H ~~~~There were no key indicators specified in the SAR or President's report
Table 7: Studies Included in Project
Study Purpose as defined at Status Impact of study
appraisal/redefined
1.PCU accounting manual Set up accounting system Completed Has improved the project financial management system . 2. Nationwide classroom Define norms for classroom Completed Helped in
construction study construction and develop an defining needs
associated program and improving
the planning process for classroom construction.
Adoption of classroom construction strategy 3. Textbook Revolving Fund To have sustainable textbook Completed Creating a
financing system textbook
revolving fund.
4. Audit of the Textbook Evaluate the efficacity of the Completed Decision to revise
Revolving Fund fund fund management
to resolve some ongoing problems.
- 16-
Table 8A: Project Costs
Appraisal estimate Actual/latest estimates
(US$ million) (US$ million)
Item Local Foreign Total Local costs Foreign costs Total
costs costs
l.Construction and 4.0 5.1 9.1 0.8 6.5 7.2
Maintenance of Low Cost classrooms
2. Revision of Curricula and 0.1 1.0 1.1 0.03 1.8 1.9
provision of Textbooks
3l. Teacher Training and 0.6 0.2 0.8 0.01 0.7 0.7
lJpgrading
4. Refurbishing Secondary 0.1 0.4 0.5 0 0.7 0.7
Technical Schools
5. Curriculum and Provision of -- 0.4 0.4 0 0.6 0.6
Instructional Materials
6. Gambian Technical Training 0.1 0.3 0.4 0.02 1.1 1.1
Institute
7. Banjul Skill Training Center 0.1 0.3 0.4 0.01 1.1 1.1
8. Ministry of Education 0.1 0.7 0.8 - 1.1 1. 1.
9. Project Implementation Unit 0.4 1.3 1.7 - 2.3 2.3
10. Examination Council 0.1 0.4 0.5 0.3 0.3
Contingencies 1.8
EU contribution 3.0 3.0 3.0
PPF .6 .6 .6
Total 8.2 13.0 21.2 0.9 19.8 20.6
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
IDA 14.6 14.6 14.6 15.7*
EU 3.0 3.0 3.0 3.0**
Communities 2.5 2.5 2.5 2.5***
Government 1.1 1.1 0.9 0.9
Total 21.2 21.2 3.4 17.6 21.0
* 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.
- 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.
