37097 Document of The World Bank Report No:ICR000029 IMPLEMENTATION COMPLETION AND RESULTS REPORT ( IDA-31720 IDA-3172A NETH-54325 ) ON A LOAN / CREDIT IN THE AMOUNT OF US$ MILLION 71.80 (US$ 3.11 MILLION LOAN & SDR 48.07 MILLION CREDIT) TO MOZAMBIQUE FOR EDUCATION SECTOR STRATEGY PROGRAM (ESSP) December 1, 2006 Human Development 1 Country Department 2 Africa Region CURRENCY EQUIVALENTS ( Exchange Rate Effective 08/25/2006 ) Currency Unit = Metic Metic 1.00 = US$ 0.04 US$ 1.00 = Metic 25.85 Fiscal Year January 1 to December 31 ABBREVIATIONS AND ACRONYMS APR Annual Progress Report CAS Country Assistance Strategy DANIDA Danish International Development Agency DCA Development Credit Agreement DO Development Objective DSS Direct Support to Schools EP1 Ensino Primario do Primeiro Grau (Grades 1-5) EP2 Ensino Primario do Primeiro Grau (Grades 6-7) ESG1 Ensino Secundario do Primeiro Grau (Grades 8-10) ESG2 Ensino Secundario do Segundo Grau (Grades 11-12) ESSP Education Sector Strategic Program FASe Education Sector Pool Funds FMR Financial Management Report FTI Fast Track Initiative GDP Gross Domestic Product Gabinete de Gastao de Projector Educacionais (Education Projects Implementation GEPE Unit) GER Gross Enrollment Rate GOM Government of Mozambique IAP Instituto de Aperfeicoamento do professor (Teacher in-service Training Institute) IMAP Instituto de Magisterio Primario (Teacher Training Institute) M and E Monitoring and Evaluation MDG Millennium Development Goal MEC Ministerio Da Educacao E Cultura (Ministry of Education) MINED Ministerio Da Educacao NER Net Enrollment Rate NGO Non-governmental Organization PAD Project Appraisal Report PARPA Plano de Accao para a reducao da Pobreza Asoluta (Poverty Reduction Strategy) PIU Project Implementation Unit QEA Quality at Entry Assessment QSA Quality of Supervision Assessment RAR Reuniao Anual de Revisao (Annual Review) Sisterma Integrado de Administracao Funanceira do Estado (Integrated FM SISTAFE Information System) SWAp Sector Wide Approach program ZIP Zona de Influencia Pedagogica (Pedagogical Support Zone) Vice President: Gobind T. Nankani Country Director: Michael Baxter Sector Manager: Dzingai B. Mutumbuka Project Team Leader: Xiaoyan Liang Mozambique Education Sector Strategic Program (ESSP) CONTENTS 1. Basic Information........................................................................................................ 1 2. Key Dates.................................................................................................................... 1 3. Ratings Summary........................................................................................................ 1 4. Sector and Theme Codes ............................................................................................ 2 5. Bank Staff ................................................................................................................... 2 6. Project Context, Development Objectives and Design............................................... 3 7. Key Factors Affecting Implementation and Outcomes .............................................. 5 8. Assessment of Outcomes............................................................................................ 9 9. Assessment of Risk to Development Outcome......................................................... 13 10. Assessment of Bank and Borrower Performance ................................................... 13 11. Lessons Learned...................................................................................................... 16 12. Comments on Issues Raised by Borrower/Implementing Agencies/Partners......... 17 Annex 1. Results Framework Analysis......................................................................... 18 Annex 2. Restructuring (if any) .................................................................................... 21 Annex 3. Project Costs and Financing.......................................................................... 22 Annex 4. Outputs by Component.................................................................................. 24 Annex 5. Economic and Financial Analysis (including assumptions in the analysis).. 29 Annex 6. Bank Lending and Implementation Support/Supervision Processes............. 30 Annex 7. Detailed Ratings of Bank and Borrower Performance.................................. 32 Annex 8. Beneficiary Survey Results (if any) .............................................................. 33 Annex 9. Stakeholder Workshop Report and Results (if any)...................................... 34 Annex 10. Summary of Borrower's ICR and/or Comments on Draft ICR................... 35 Annex 11. Comments of Cofinanciers and Other Partners/Stakeholders..................... 38 Annex 12. List of Supporting Documents .................................................................... 39 MAP.............................................................................................................................. 41 1. Basic Information Education Sector Country: Mozambique Project Name: Strategic Program (ESSP) Project ID: P001786 L/C/TF Number(s): IDA-31720,IDA- 3172A,NETH-54325 ICR Date: 12/14/2006 ICR Type: Core ICR Lending Instrument: TAL Borrower: GOVT. OF MOZAMBIQUE Original Total Commitment: XDR 51.1M Disbursed Amount: XDR 48.1M Environmental Category:C Implementing Agencies Ministry of Education Cofinanciers and Other External Partners 2. Key Dates Process Date Process Original Date Revised / Actual Date(s) Concept Review: 04/16/1997 Effectiveness: 08/02/1999 08/02/1999 Appraisal: 06/24/1998 Restructuring(s): Approval: 02/18/1999 Mid-term Review: 12/17/2005 04/03/2002 Closing: 06/30/2004 06/30/2006 3. Ratings Summary 3.1 Performance Rating by ICR Outcomes: Moderately Satisfactory Risk to Development Outcome: Moderate Bank Performance: Satisfactory Borrower Performance: Satisfactory 3.2 Quality at Entry and Implementation Performance Indicators Implementation Performance Indicators QAG Assessments (if any) Rating: Potential Problem Project at any time (Yes/No): No Quality at Entry (QEA): None Problem Project at any time (Yes/No): Yes Quality of Supervision (QSA): Satisfactory DO rating before Closing/Inactive status: Satisfactory 1 4. Sector and Theme Codes Original Actual Sector Code (as % of total Bank financing) General public administration sector 10 7 Adult literacy/non-formal education 1 1 Primary education 70 68 Secondary education 20 Tertiary education 18 Vocational training 1 4 Original Priority Actual Priority Theme Code (Primary/Secondary) Participation and civic engagement Primary Primary Gender Primary Secondary Social analysis and monitoring Secondary Secondary Education for all Primary Primary Rural services and infrastructure Primary Primary 5. Bank Staff Positions At ICR At Approval Vice President: Gobind T. Callisto E. Nankani Madavo Country Director: Michael Baxter Phyllis R. Pomerantz Sector Manager: Dzingai B. Mutumbuka Ruth Kagia Project Team Leader: Xiaoyan Liang Donald B. Hamilton ICR Team Leader: Xiaoyan Liang ICR Primary Author: Prema Clarke 2 6. Project Context, Development Objectives and Design (this section is descriptive, taken from other documents, e.g., PAD/ISR, not evaluative) 6.1 Context at Appraisal (brief summary of country macroeconomic and structural/sector background, rationale for Bank assistance) Mozambique received its independence in 1975. The Education Sector Strategic Program (ESSP) followed three education sector projects implemented during the years after independence. These earlier education projects focused on capacity building and the expansion of schooling. The 1976- 1992 civil war, however, destroyed 3,400 school and to some extent reversed the earlier gains made in education. The ESSP was formulated in a politically stable environment accompanied by the substantial economic growth that characterized the years after the civil war. The project design and development objectives (DOs) were seen to be critical to the status of the education sector in Mozambique operating in a post-conflict environment. The DOs coincided with the aspirations of the Government of Mozambique (GOM). This was conveyed in the 1992 Ministerial Decree following the signing of the peace agreement and was then reiterated in the Education Sector Strategy Program formulated in 1997. According to the Project Appraisal Document (PAD), the focus on quality in the project design and objectives was particularly pertinent as there was considerable expansion of the system without commensurate improvement in quality during the years after peace was restored to the country. The objectives were in line with the Bank's Country Assistance Strategy (CAS Doc No.: 17180) for Mozambique, which emphasized the expansion of human capital and building-up of partnerships with donors for development. The CAS objectives corresponded with the Paris Declaration (1990) mandating a shift in donor support to coordinate and streamline aid to developing nations. Building partnerships was especially pertinent to the Mozambican context with multiple and disparate donors and Non-governmental Organizations (NGOs) working in the education sector. The project also reiterates the Millennium Development Goals (MDGs) established in 2001 of universal primary education and improvement in the participation of girls. 6.2 Original Project Development Objectives (PDO) and Key Indicators (as approved) The development objective of the Education Sector Strategy Program was to provide increased and equitable access to higher quality education that would be instrumental in promoting economic and social development in the country. The key performance indicators are: 1. Increased proportion of students passing key primary and lower secondary examinations: (i) Grade 5 from 54 percent to 74 percent; (ii) Grade 7 from 37 percent to 60 percent; and (iii) Grade 10 from 33 percent to 55 percent. 2. A reduction in the average repetition by half for both primary and lower secondary levels. 3. An increase in gross enrollment rates (GERs): (i) Grade 1-5 from 67 percent to 86 percent; (ii) Grades 6-7 from 5 percent to 30 percent. 4. An increase in enrollment in schools and, in districts where classrooms are built equivalent to at least 75 percent of the new capacity created. 5. Implementation of at least 80 percent of the work program for each year, measured by physical 3 targets, budget spent and routine activities. 6. Achievement of the agreed rate of decentralization of management to the provinces and districts as defined in the schedule to be included in the Program Implementation Manual. 6.3 Revised PDO and Key Indicators (as approved by original approving authority), and reasons/justification No revisions. 6.4 Main Beneficiaries, original and revised (briefly describe the "primary target group" identified in the PAD and as captured in the PDO, as well as any other individuals and organizations expected to benefit from the project) The main beneficiary of the program was GOM's school system: about 10,000 schools, 3.4 million students, 60,000 teachers, communities and parents. The officials in GOM's Ministry of Education and Culture (Ministerio Da Educacao E Cultura, MEC) at the central and provincial levels also benefited from the program. The project identifies girls and vulnerable groups from rural areas as receiving specific attention in the program. Secondary beneficiaries to the program were the departments of technical education and higher education. 6.5 Original Components (as approved) The project comprised of five components: (1) Quality of education to improve high repetition and low completion rates (US$108.5 million; IDA: US$25. 8) with five subcomponents: (i) Provision of teacher training; (ii) Ensuring pedagogical support for teachers; (iii) Curriculum transformation; (iv) Preparation of learning materials; (v) Reform in assessment and examinations; (vi) Introducing Direct support for schools; and (v) Training of school directors. (2) Access to education to increase access and ensure equity (US$193.3 million; IDA: US$36.4) with four subcomponents. (i) School and classroom construction and rehabilitation; (ii) Introducing initiatives for girl's education; (iii) Expanding non-formal education; and (iv) Improving special education for children with disabilities. (3) Institutional capacity to strengthen management capacity (US$325.4 million; IDA: US$8.3 million) with four subcomponents: (i) Reform in the organizational structure and strengthening decentralization; (ii) Enhancing skills for policy analysis and planning; (iii) Improving financial management; and (iv) Ensuring systematic monitoring and evaluation. (4) Develop a strategy for technical and vocational education. (US$42.1 million; IDA: US$.5 million). (5) Strategic planning for expanding and improving the quality of higher education (No cost provided). 6.6 Revised Components 4 No revisions 6.7 Other significant changes (in design, scope and scale, implementation arrangements and schedule, and funding allocations) The IDA Credit was designed as a specific investment loan to support the GOM's education sector program, also called ESSP, using a Sector Wide Approach Program (SWAp). In the Development Credit Agreement (DCA), the project was referred to as a "Technical Assistance Loan" and in the PAD as a "Sector Investment Loan." ESSP included substantial financial support from donors for different components and subcomponents. Though, the activities supported by the Credit are specified, the PDOs relate to the entire ESSP. As there was no legal framework under girding donor involvement as outlined in the PAD, several donors redefined their support to GOM. In response, without changing the DOs, several adjustments were made in the scope of the components funded by the IDA Credit. This realignment during implementation was foreseen in the PAD when it notes that the ESSP is a rolling plan to be revised annually. These adjustments were made during the supervision and mid-term missions and through formal amendment to the allocations to the civil works and school grants categories in the DCA. 7. Key Factors Affecting Implementation and Outcomes 7.1 Project Preparation, Design and Quality at Entry (including whether lessons of earlier operations were taken into account, risks and their mitigations identified, and adequacy of participatory processes, as applicable) Several positive aspects of the preparation and design of ESSP can be identified. (i) GOM's strong and consistent commitment to education reform is evident throughout the preparation and implementation of ESSP. (ii) GOM's Education Sector Strategic Plan provided the much needed policy framework for donor interaction and the move towards a coordinated donor approach to educational reform supported in the design of ESSP. The Bank was the first donor to support this strategy. (iii) As there was no agreement among donors on the procurement and financial instruments critical for Bank financing, the decision was taken to design ESSP as an investment operation rather than through sector budget support or pool funds. Attention was given in the preparation of ESSP to include the overall DOs and to accommodate the nascent donor support program through parallel financing. The PAD refers to IDA as supporting "core elements" while donors finalized their programs. (iv) The operation was forward-looking and comprehensive in forcing the country to think of sub-sectors in education, such as technical and higher education that had hitherto not received much attention. (v) The project design included the mainstreaming of the stand-alone and independent Project Implementation Unit (PIU) established for earlier Bank projects in Mozambique. Lessons learnt from previous projects and relevant and detailed analysis informed the design of ESSP. There are, however, several issues related to project preparation and design and the Quality of Supervision Assessment (QSA5) also refers to an "unsound" design at entry. (i) The way in which this Credit was designed as an investment operation within an overall SWAp framework 5 depended on donor support and funding for significant components of ESSP. However, there was no legal framework for ensuring donor funding. (ii) The decision to incorporate the expected participation of 14 donors in the various components of ESSP contributed to an overly complex and ambitious project design, which lacked, according to the Bank's mid-term supervision review, "overall coherence." This complexity and incoherence made it difficult, on the one hand, for the Bank task team to assess the implementation performance of this project and, on the other hand, for GOM to adequately report on the progress made in implementation. (iii) The less than satisfactory implementation performance of the project during its early years indicates that the project preparation team did not sufficiently take into account the limited readiness of project authorities to implement this program. Readiness specifically in two areas could have been better addressed. First, the team underestimated the extent of reorganization required to relocate implementation from a PIU to the Ministerio Da Educacao (MINED) renamed MEC. Second, the team did not take into account the challenges involved in the preparation of strategic action plans crucial for timely financing and implementation. Even at mid-term, the PSRs discuss the need for such plans for several components including community construction, teacher training, direct support to schools and improving the performance of provincial level institutions. (iv) As the project included the whole sector in its design, it is not clear whether the different sub-sectors received sufficient attention. For instance, if the secondary education sub-sector is considered, while the civil works requirements for this level of education was addressed, other aspects at the secondary level, such as curriculum reform and teacher training, were not adequately dealt with. 7.2 Implementation (including any project changes/restructuring, mid-term review, Project at Risk status, and actions taken, as applicable) The closing date of the project was extended by 24 months. Project implementation was rated unsatisfactory from the end of 2000 to 2002. After the project was realigned to focus on components that required additional financing, such as civil works and Direct Support to Schools (DSS), project implementation was rated satisfactory. The following factors facilitated project implementation. (i) The post-civil war environment marked by stability and economic prosperity supported an ethos upholding the importance of developing education and skill in the population. This ethos provided the necessary motivation and public pressure to implement the project. (ii) In a scenario of uncertainty in donor funding, the decision of the Bank and GOM to expand the resource intensive components of the project, facilitated the implementation of ESSP. Financing was increased for the access component and decreased in the quality and institutional capacity building components. Within the quality component, however, the Bank initiated the DSS program, which allocates a small amount of cash (one US$ per student per year) to schools for the purchase of basic teaching and learning materials. Disbursed twice a year, the DSS in 2004 had a special allocation for the production of a school health manual with a focus on HIV/AIDS. In 2005, the DSS incorporated a pilot intervention for HIV/AIDS orphans in four districts. The DSS program was the only program which effectively ensured some level of cash revenue for the schools in the context of abolishing primary school fees. 6 (iii) Mainstreaming project implementation to MEC allowed for ownership and sustainability of project interventions. (iv) The supervision strategy adopted in the project, which involved the review of the whole sector in the annual event (Reuniao Anual de Revisao or RAR), was useful in bringing together the state, the provinces and the donors. It provided an occasion for highlighting achievements and issues. Furthermore, this event played an important role in developing donor harmonization and program implementation. Several factors also constrained project implementation. (i) For GOM, the dynamics of dealing with and overseeing the involvement of a variety of donors and different departments within MEC each with its own distinctive culture have constrained project implementation. It took time to develop an effective level of coordination. Towards the end of the project there appears to be a shared vision across departments in the MEC, which has resulted in more effective project implementation. This bodes well for future operations in the education sector. (ii) Political economy issues constrained project implementation during its early years. The newly appointed minister of education, elected after the commencement of the project, felt it was better to re-introduce the earlier PIU called the Gabinete de Gestao de Projector Educacionais (GEPE or the Education Projects Implementation Unit). Most department officials did not support this move causing a split in project management between GEPE and the Minister, on one side, and the MEC, on the other. Project implementation slowed down during this period, especially civil works as the Bank rejected tenders received from GEPE without the approval of the Directorate of Administration and Finance. On the Bank's insistence this reversal in responsibility did not take place and MEC was reinstated as the sole implementing agency. (iii) The capriciousness of donor support due to the absence of a SWAp legal framework constrained component implementation, especially those dealing with improving quality. The PAD's extensive discussion and identification of specific activities to be financed by donors was not sufficient to ensure the required fund availability for these components. In most cases donor support was redefined and did not match the PAD description of activities. A much more effective framework for donor support has been adopted in the recently negotiated "Technical and Vocational Education and Training Project." (iv) The endorsement of the international donor supported Fast Track Initiative (FTI) in 2003 confused the implementing agency. Due to the lack of clarity on how Mozambique could participate in this program and the impression that FTI funds could substitute for IDA funds slowed the pace of implementation. (v) Several of the interventions depended on consultant reports for providing a road map for implementation. Some of the reports were not appropriate and useful for this purpose. For example, the consultant report on the development of capacity failed to provide the much needed direction and specification of activities for this component. (vi) Cost escalation of construction material required re-estimation and delay in the civil works component. In addition, the lack of in-country procurement and financial expertise delayed project implementation in the first few years. Procurement and financial experts had to be hired from surrounding countries. (vii) While the RARs were critical to the supervision of the project, it did not include systematic reporting and reflection on the implementation status of the ESSP. Regular GOM evaluations may have helped to identify bottlenecks constraining project implementation. (viii) The country was hit by severe floods in 2000, stalling implementation for several months. 7.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization 7 The PAD outlines a fairly extensive plan for monitoring and evaluating (M&E) the project. MEC was to review project implementation based on the specified M&E indicators in Annex 1. Each unit within MEC was to develop monitoring instruments relevant to their respective component. Supported by Financial Monitoring Reports (FMRs), the MEC was to consolidate statistical, financial and physical data on the rate of implementation. FMRs were to be accompanied by Annual Progress Reports (APRs) identifying constraints to the implementation of ESSP. The donor group was to monitor and evaluate their respective components and provide their own reports. The MEC has provided timely and comprehensive FMR reports limited to physical achievements and IDA financing. MEC did not provide APRs on outcomes and component implementation, and donor reports were not generated. APRs would have allowed M&E to be more complete in addition to providing an opportunity for the implementing agency and donors to analyze the extent to which project interventions were leading to outcomes. 7.4 Safeguard and Fiduciary Compliance (focusing on issues and their resolution, as applicable) The project was in the C category and no issues were identified during the project period. Except for the lack of skilled personnel during the first few years of the project period, no issues related to fiduciary compliance were reported. Audit reports were provided on time and there were no issues with government funding and financing. Transactions and balances were accurately recorded with regular and reliable financial statements. There were no significant issues related to internal controls or accountability. Internal audit functions within the Ministry of Education, however, required assistance, which included setting up an independent internal audit department that would design, organize and maintain an internal audit structure, train relevant staff at the central and provincial levels and put together an internal controls manual. These tasks have been completed. 7.5 Post-completion Operation/Next Phase (including transition arrangement to post-completion operation of investments financed by present operation, Operation & Maintenance arrangements, sustaining reforms and institutional capacity, and next phase/follow-up operation, if applicable) ESSP II prepared by GOM is to continue the implementation of ESSP. ESSP II outlines outcomes and strategies covering the period 2007 to 2011. The costs for this plan are yet to be finalized. Draft estimates indicate that it will cost around US$3 billion. FASe (Education Sector Pool Fund), a financing mechanism for donors in the education sector, was established in 2003. Assuming a real growth rate of 5 percent with 18 percent of GDP allocated for education and FASe funding (which is to be US$50 million annually), the deficit in the budget is estimated to be US$800 million or US$160 million annually. Further to providing assistance to the government and exploring possibilities of efficiency gains within the sector, the Bank has two options. First, the Bank will be involved with extensive dialogue with the GOM to increase funding for the education sector from its current level of 18 percent. Second, the Bank would also explore the possibility of IDA funding in the FASe. GOM has now completed strategic planning in significant areas. Implementation of several 8 critical activities such as the DSS and HIV AIDS started in ESSP will continue. Some of the interventions such as textbooks will require further cost analysis and evaluation to make it more effective for improving learning levels. In future operations, close attention will be needed for interventions related to improving the quality of education. It will be useful to undertake periodic analysis of school and classroom functioning to understand the impact of the various activities intended to improve learning and reduce repetition. The capacity development of provincial level institutions to administer and manage education will be particularly important in the next phase. 8. Assessment of Outcomes 8.1 Relevance of Objectives, Design and Implementation (to current country and global priorities, and Bank assistance strategy) Development objectives: The DO of ESSP continues to be relevant and appropriate at the time of writing this ICR. Though, more fine tuning of the indicators to ensure more precision in definition and measurement would be useful. The Bank and GOM have commenced this task as evident in GOM's plan for reducing poverty (Plano de Accao para a Reducao da Pobreza Asoluta or PARPA), and the most recent CAS progress Report (CAS Progress Report for the period FY04-06, February 21, 2006). The method of measuring enrollment is shifting from GERs to Net Enrollment Rates (NERs), which is more precise. GERs tend to include both under age and over age children causing over-counting while NERs represent the percentage of students enrolled in a particular age group. More attention given to measuring repetition, the acquisition of adequate knowledge and skill especially in language and mathematics and the documentation of provincial level performance over time will be important. There is also the question of whether examination results adequately reflect improvements in student learning. Sample based assessments of student achievement as suggested by the CAS and participation in international assessments would provide direction to ESSP II. Government officials spoken to for this ICR were not entirely clear as to how repetition and dropout, important indicators of quality, were measured. With the introduction of the new curriculum, automatic promotions as well as repetition, based on examination performance, were practiced. Clarity in the measurement of repetition would be useful in monitoring learning. The CAS and the MDGs also make a shift in emphasis to completion rates and the monitoring of the percentage of students reaching Grade 5 as well as youth literacy rates. Project design and implementation: The DSS started in ESSP has been adopted now as nationwide policy financed by FASe. Due to increases in enrollment infrastructure requirements will continue to grow and will require inclusion in the ESSP II. The recent report of the Independent Evaluation Group (2006) highlights the general limitation of Bank projects in the area of quality. The CAS has identified several interventions in progress to address this issue such as increasing the number of qualified teachers, improving teacher deployment, and expanding the DSS and the HIV/AIDS prevention program. A critical determinant of quality is systematic and effective instruction in the classroom. In addition to enhancing the capacity of provincial level institutions, improving teacher performance monitoring and the development of incentives for ensuring better instruction in classrooms will be crucial. 8.2 Achievement of Project Development Objectives (including brief discussion of causal linkages between outputs and outcomes, with details on outputs in Annex 4) 9 1. Success in examinations: The first DO indicator was to increase the proportion of students passing key primary and lower secondary examinations. At the end of EP1, the increase was to be from 54 to 74 percent; EP2, 37 to 60 percent; and in ESG1, from 33 to 55 percent. The ISRs record examinations results from the year 2000. In 2000, there is an increase of EP1 scores to 67 percent and in EP2 to 53 percent and in ESG1 to 45 percent. There are only small variations in scores in subsequent years until 2005 when scores increase to 75 percent for EP1 and EP2 and to 60 percent for ESG1. While this increase in the last year of the project suggests that the project has achieved its objective, a few issues discussed below demands a more cautious interpretation. The Implementation Status Reports rate the quality of data as fair. The increase is also difficult to explain as the interventions connected with learning such as curriculum reform have only begun to be implemented and are not yet widespread. In addition, the field visit to schools did not display conditions sufficient to produce this level of learning. More than half the students in the class did not possess textbooks. Random assessments during the classroom visit also suggest limitations in improving learning. If this indicator is taken with the completion rate of students, there is concern. Only 48 percent of the students enrolled in EP1 complete this level of education, in EP2, 29 percent; ESG1, 5 percent. 2. Reduction in repetition: Average repetition was to reduce by half for primary and lower secondary. The average repetition rate for EP1 (lower primary) has reduced from 24 percent in 1999 to 11 percent in 2005; for EP2 from 25 percent to 6 percent; for ESG1 from 25 percent to 19 percent; and for ESG2 from 12 percent to 8 percent. Similar rates are evident for both boys and girls. This reduction in repetition in 2005 is substantial and indicates the project's success in achieving its goals. Though, if the 2004 rate is considered -21 percent for EP1 and 20 percent for EP2- the project was not able to achieve the intended reduction in repetition. The question remains as to whether the increases in the last year represent a true increase in learning or if it is a result of policy changes related to the curriculum. GOM has recently introduced cycles of learning where students were held back only between Grades 2 and 3 and between Grades 5 and 6. In the intervening years students are automatically promoted. In addition to the curriculum policy change, as the measurement of repetition changed in the last year of the project, it may not be appropriate to compare the 2005 rate to the baseline. Taking examination results and repetition outcomes together, the low levels until the last year of the project reflect the constraints to implementing the quality dimensions of the project such as revitalizing the Zona da Influencia Pedagogica (Pedagogical Support Zone or ZIPs), ensuring adequate textbooks in classrooms, delays in curricula revision and absence of examination reform. 3. Increase in GERs: GERs were to increase from 67 percent to 86 percent for EP1; and from 15 to 30 percent for EP2. There is a steady and significant increase in GERs across all levels of education and the project has clearly met this goal. In EP1, the GER is 131 percent. The NER for this same group increased from about 50 to 83 percent. In actual numbers enrollment, which was 2 million in 1999 increased to about 3.4 million in 2005. The GER for EP2 is 47 percent and the NER increased from 2.5 to 6.7 percent. Actual enrollment increased from 186,000 in 1999 to more than 450,000. For ESG1 and ESG2, enrollment rose from about 70,000 in 1999 to more than 240,000 in 2005. Gender equity in enrollment however, has been more of a challenge. The increase in the percentage of girls enrolled relative to boys was about 4 percentage points in EP1 (42.1 to 46.4 percent) while in the remaining levels EP2, ESG1 and ESG2 the increase was around one percentage point. 10 GOM's development of school infrastructure has had a significant impact on increasing GERs in EP1 and EP2. In EP1, there were 6,114 schools in 1998, which increased to 8,696 in 2005; in EP2, 381 schools increased to 1,320 in 2005. The abolition of school fees has also contributed to the phenomenal increases in enrollment. IDA funds were primarily used for civil works at the secondary school level and though the increase in enrollment at this level is not included in the DOs the impact is substantial. In ESG1, there were 74 schools in 1998, which increased to 156 in 2005 and in ESG2 from 13 in 1998 to 35 in 2005. 4. Increase in enrollment with the construction program: Enrollment was to increase in schools and districts where classrooms were built equivalent to at least 75 percent of the new capacity created. The actual increases in enrollment recorded above confirm the achievement of this objective. Field visits to the newly constructed schools indicated that students were attending these schools. 5. Work program implementation: At least 80 percent of the work program was to be implemented each year and this was to be measured by physical targets achieved and budget spent. During the first half of the project this goal was not achieved, however in the last three years, the project overshot this target and completed more than 80 percent of the annual work program. 6. Decentralization: There was an agreed rate of decentralization of management to the provinces and districts defined in the Project Implementation Plan. Following the rules established in the District Social and Economic Plan, each province was responsible for planning and budgeting for the use of about 7 billion Meticais. The extent to which provinces were able to do this is unclear as there was limited implementation of the third component i.e. institutional capacity building. 8.3 Efficiency (Net Present Value/Economic Rate of Return, cost effectiveness, e.g., unit rate norms, least cost, and comparisons; and Financial Rate of Return) The twin economic goals of reducing poverty and expanding the size of human capital in the country have been clearly achieved with the implementation of ESSP. Within an environment of macro economic stability and consistent commitment to economic reforms the average GDP growth rate from 1996-2003 was 8 percent. In addition, Mozambique records a reduction in the poverty head count from 69 to 54 percent between 1997 and 2003. According to the Mozambique Country Economic Memorandum (June 3, 2005), economic reforms that supported this phenomenal GDP growth were sustained investments in education, health, agriculture and employment in the informal sector. A significant part of the economic reforms undertaken by GOM was to ensure sustained financing to a broad-based development of education, which included school, technical, vocational and higher education. The share of education expenditure in GOM's budget has ranged between 18 and 20 percent over the project period. The impact of education on the reduction in poverty head count is due to the increase in individual wages as a result of additional years of schooling. It is estimated that an extra year of education increases wages by about 3 percent in the agriculture sector and between 5 and 15 percent in non-farm work. There is also an increase in the rate of return between 1996 and 2002 for graduates at the secondary and higher secondary levels. 8.4 Justification of Overall Outcome Rating (combining relevance, achievement of PDOs, and efficiency) 11 Rating: Moderately Satisfactory The achievements in ESSP with regard to increasing access and enrollment in education have been substantial, especially in the lower levels of education. Learning has improved and repetition has decreased. However, as the CAS Progress Report (2006) points out, improvements in completion, repetition and dropout are not commensurate with this increase in enrollment and falls well short of expectation when compared to neighboring countries and countries with similar income levels. There is also considerable variation in school enrollment by gender and location. Provinces in the north and center have much lower completion rates than the others. Overall, the moderately satisfactory rating reflects the substantial achievements in ensuring the availability of schools and bringing children to school. The rating also represents the limitations of the project in improving the quality of education and the need for Mozambique to concentrate on interventions that will improve retention, repetition, completion and learning in schools. 8.5 Overarching Themes, Other Outcomes and Impacts (if any, where not previously covered or to amplify discussion above) (a) Poverty Impacts, Gender Aspects, and Social Development (b) Institutional Change/Strengthening (particularly with reference to impacts on longer-term capacity and institutional development) The implementation of this project by MEC rather than by a PIU has had a positive impact on institutional development at the central level. MEC was fully responsible for project activities and outcomes, thereby building knowledge and skill in a variety of areas especially administration and coordination between the different departments responsible for education. Though the level of Bank procurement and financial management skills required the hiring of consultants outside the department, the individuals hired for this purpose did develop some of these skills among the lower tiers of government. MEC implementation also facilitated the demand for accountability at the ministerial level. The institutional impact of this project outside of the country's capital, though, appears to be negligible. Even though provinces were given budgets and responsibilities for planning, there is limited evidence of improved efficiency and enhanced administrative and management skill. Improving the quality of education and increasing the level of achievement with regard to completion, repetition and dropout will depend on the ESSP II project's ability to develop institutions at the provincial level. At the sub-provincial level, the ZIPs were intended to be the vibrant institution, playing a significant role with regard to quality improvement and teacher support. The intended physical expansion of ZIPs did not happen and developing capacity has taken place in a sporadic manner. According to department officials, though a ZIP revitalization plan was completed in 2001, it was not implemented because of the absence of a legal framework that ensured additional remuneration, and adequate staff with defined and relevant roles and responsibilities. One supervision report indicates that the Commonwealth of Learning conducted some training for school heads, the impact of which was not analyzed. At the community level, the construction of schools by the community did not take place due to 12 the inability of the project to establish adequately skilled community groups that could take on the responsibility of construction. Both the capacity building of ZIPs and community level groups are significant challenges for ESSP II. (c) Other Unintended Outcomes and Impacts (positive or negative, if any) The implementation of ESSP has enabled multilateral and bilateral partners to adopt a more aligned and harmonized approach to delivering aid to education in Mozambique. The preparation of ESSP II reiterates this alignment and partnership among donors. There is now a new Memo of Understanding developed and signed for the operationalization of FASe, which is acknowledged as the main funding mechanism for external support to education in Mozambique. 8.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops (optional for Core ICR, required for ILI, details in annexes) 9. Assessment of Risk to Development Outcome Rating: Moderate The fiscal situation in the country is agreeable to the continued development of the education sector. The Bank on July 3, 2006 announced the cancellation of most of Mozambique's IDA debt in line with the Multilateral Debt Relief Initiative (2005) further easing fiscal constraints to the country. The overall future development of Mozambique, which includes the education sector, is outlined in three critical documents: the PARPA; the Economic and Social Plan, which outlines each year's plan of action; and the Annual Progress Report, which monitors implementation performance. The PARPA with a Performance Assessment Framework is aligned to the Bank's Africa Action Plan. All of these documents support progress toward MDGs. The implementation of these plans is monitored closely by GOM and the donor community. FASe is now fully operational and will be connected to the Sisterma Integrado de Administracao Finnanceira do Estado (SISTAFE or Integrated Financial Management Information System), which is the new budget treasury management accounting and internal control system. SISTAFE is intended to make budgeting and accounting in the department more timely and efficient. GOM has prepared its second strategic plan (ESSP II) for the education sector. With full government ownership and commitment to developing the education sector, the gains made in ESSP are very likely to be sustained. Furthermore there is evidence that the quality dimensions that were not addressed in ESSP have become the focus of attention in ESSP II. The "moderate" rating is given as improving quality will be a challenge for GOM and will depend upon enhancing provincial level commitment and accountability. In addition, the development of the education sector could be effected by the prevalence of HIV/AIDs. 10. Assessment of Bank and Borrower Performance (relating to design, implementation and outcome issues) 10.1 Bank 13 (a) Bank Performance in Ensuring Quality at Entry (i.e., performance through lending phase) Rating: Moderately Satisfactory Lending: Bank performance in lending is rated moderately satisfactory. To summarize the earlier discussion (Section 7.1) at the time of project preparation the importance of improving the quality of education was recognized and the components were a natural progression of those implemented in previous projects - the Second Education Project, which closed in June 1999 and the Capacity Building: Human Resources Development Project, which closed in March 2002. The ESSP, in a critical attempt to incorporate the initial stages of donor support, specified donor financial commitments for significant quality components of the project. In a post-conflict environment with multiple donors, this intent to move donor coordination forward was important. However, without a legal framework, several changes were made in donor support to ESSP, which constrained the project's ability to improve education quality. The extensive sector analysis during preparation also did not adequately analyze the implications of limited government capacity and multiple donor involvement. The range of reactions to project preparation and design from the point of view of government and donors is pertinent to assessing Bank performance. On the part of the government, it was financially critical for the Bank to move forward with this project as donors discussed various options for funding education reform. Donors, though, were mixed in their reactions to Bank performance during project preparation. While some donors felt that the Bank was preparing this project without waiting for adequate donor coordination, others felt that this was inevitable as they could not keep pace with Mozambique's funding requirements. (b) Quality of Supervision (including of fiduciary and safeguards policies) Rating: Satisfactory The QSA5 rated the supervision of ESSP satisfactory in 2002. The supervision of ESSP took place through meetings, which included both donor and government (Comite Paritario de Acompanhamento) and RARs. The RAR was an occasion for provincial authorities and department heads to meet and discuss the action plan and achievements in education. As identified in QSA5, the project team has dealt skillfully with a situation that was often beyond their control. The new government's request to regress institutionally to a PIU during the first two years, was rightly discouraged by Bank staff. To assist project implementation during the first four years, the project team attempted to initiate significant policy directed activities such as putting in place a ZIP strategy and developing an action plan for teacher training and institutional capacity development. Due to the limited success of these attempts and surplus funds from other donors, there is an exclusive focus on resource intensive interventions including the DSS, kits for ZIPs, civil works and supplies for training colleges during the last three years of the project period. Notwithstanding, it would have been useful for the project team to be more reflective on the extent to which the quality dimensions would be addressed by the project. In addition, whether the project needed to be restructured was not sufficiently thought through, especially as some of the donor funding for components related to quality was not forthcoming. Client reporting on the status of implementation of the entire program during the RAR, in addition to regular field visits could have facilitated more effective supervision. 14 (c) Justification of Rating for Overall Bank Performance Rating: Satisfactory The Bank's performance is rated as satisfactory as the project was prepared in a post- conflict environment forcing change in the rules of donor participation in development. ESSP was designed, prepared and supervised as donors were working out their own involvement with the education sector and GOM having to redefine its own relationship with donors in this changing scenario. Both these dimensions were crucial to the implementation of ESSP, but outside the control of the project team. In fact, the preparation and supervision of this project sustained the momentum of development in the education sector as evident in the progress made with regard to several of the development objectives. 10.2 Borrower (a) Government Performance Rating: Satisfactory Preparation: During preparation, the ownership and commitment of the borrower is clearly evident. In addition, the borrower's experience with Bank projects honed in while implementing IDA financed projects for over a decade informed the design of ESSP. Supervision: Government implementation performance as discussed above was affected by political economy issues as well as factors outside of their control. The intentions on the part of government to reinstitute the PIU did delay project implementation. Similarly, reliable and timely donor support to education as planned was not forthcoming, which also affected several of the components from being fully implemented. In addition, systematic reporting on the status of implementation would have been helpful. Apart from these issues, government personnel and procedures were very supportive and proactive in the implementation of ESSP. After the initial difficulties with staffing (specifically for procurement and financial management) were addressed, the civil works component was implemented smoothly. The DSS was adopted with timeliness and vigor accompanied by detailed accounting from each school. The government was also proactive in putting together strategies and projects in higher, vocational, and technical education. Monitoring of physical progress and financial management in the project is commendable. (b) Implementing Agency or Agencies Performance Rating: Not Applicable Implementing Agency Performance Ministry of Education (c) Justification of Rating for Overall Borrower Performance Rating: Satisfactory Overall GOM's performance in implementing ESSP is satisfactory. The government assumed full 15 ownership and commitment to reform in education. Significant landmarks include the preparation of country-wide and time-bound plans and objectives for the education sector (ESSP I and II). The project was implemented in an environment of financial constraint and uncertainty. GOM navigated this situation with skill and a willingness to comply with donor requirements as well as work with the limitations of its own system. The process of building consensus and putting together strategic plans for different areas cannot be underestimated and requires considerable effort and commitment. Strategic plans for teacher training and curriculum were in place toward the end of the project. 11. Lessons Learned (both project-specific and of wide general application) 1. Improvements in the quality of education require more specificity in terms of targets and more attention during implementation. Quality objectives are critical and must play an equally significant role as the access objective. While GOM has clear and realistic goals for access and enrollments, there is need for clarity in measurement and reporting of targets for improving quality such as completion and repetition. Defining and clarifying these targets especially at the provincial level rather than at the country level would provide more structure and direction to program activities. 2. There is need for the appropriate use of the SWAp approach. There was persistent confusion between ESSP as a government program including contributions from other donors and the ESSP as an IDA credit supporting the Government program. In order to maintain the holistic approach subscribed to in the SWAp, it is necessary for the program to be accompanied by a corresponding and shared legal and financing arrangement that includes all donors or clear requirements for government evaluation and reporting on the whole program. SWAps also require substantial time on the ground working with donors and additional financial resources to ensure a proper mix of skills in the supervision team. 3. Donor funding will be better harmonized if the shared financing arrangement incorporates a vision for the development of the sector. The FASe is a funding mechanism and does not necessarily represent a shared strategy for improvements in the education sector. The diversity in academic perspectives and goals among donors is causing fragmentation and lack of systematicity in government planning and programming. A shared donor strategy for the education sector under girding the financial support provided through the FASe would be helpful for GOM. The new ESSP II promises to provide such a framework. 4. Issues related to the development of secondary education require specific attention. The interventions represented by the project components do not seem to provide sufficient distinctive and relevant support to secondary education. The interventions such as curriculum revision and the DSS are focused on elementary education. If secondary education is to improve, concerted attention is required for the specific needs of secondary education, especially for girls. 5. There is need for Bank and donors to adopt creative and structured strategies for developing consensus. GOM's effort at implementing ESSP was delayed due to the difficulties in developing strategies and action plans. In order to assist government in this area, donors provided consultant reports based on which a shared strategy was to evolve, and as evident in the project, this did not happen. To promote more ownership and consensus, it will be useful for Bank staff to develop alternative skills at facilitating dialogue and sustaining negotiations such as consultations, focus group discussions, study tours, and joint authorship of background reports. 16 6. Mainstreaming of project implementation requires fine tuning and reorganization. The transfer of responsibility for implementation from a PIU to MEC was timely and necessary. However, as the incomplete reporting indicates, it was a challenge for MEC to monitor the program as so many departments of education were involved. There is need for a dedicated unit in MEC to analyze policy, the status of implementation and project outcomes and to work across the various departments of education. 7. The importance of addressing the HIV/AIDS issue. Although HIV/AIDS was not mentioned in the project design, this issue was incorporated into the program given the critical and proven role of education as a social vaccine in preventing HIV infection. 12. Comments on Issues Raised by Borrower/Implementing Agencies/Partners (a) Borrower/implementing agencies (b) Cofinanciers (c) Other partners and stakeholders (e.g. NGOs/private sector/civil society) 17 Annex 1. Results Framework Analysis Project Development Objectives (from Project Appraisal Document) The development objective of the Education Sector Strategy Program was to provide increased and equitable access to higher quality education that would be instrumental in promoting economic and social development in the country. The key performance indicators are: 1. Increased proportion of students passing key primary and lower secondary examinations: (i) Grade 5 from 54 percent to 74 percent; (ii) Grade 7 from 37 percent to 60 percent; and (iii) Grade 10 from 33 percent to 55 percent. 2. A reduction in the average repetition by half for both primary and lower secondary levels. 3. An increase in gross enrollment rates (GERs): (i) Grade 1-5 from 67 percent to 86 percent; (ii) Grades 6-7 from 5 percent to 30 percent. 4. An increase in enrollment in schools and, in districts where classrooms are built equivalent to at least 75 percent of the new capacity created. 5. Implementation of at least 80 percent of the work program for each year, measured by physical targets, budget spent and routine activities. 6. Achievement of the agreed rate of decentralization of management to the provinces and districts as defined in the schedule to be included in the Program Implementation Manual. Revised Project Development Objectives (as approved by original approving authority) No revisions. (a) PDO Indicator(s) Original Target Formally Actual Value Achieved at Indicator Baseline Value Values (from Revised approval Target Completion or Target documents) Values Years Indicator 1 : Increased proportion of students passing key primary and lower secondary examinations. Value EP1 Grade 5 = EP1 Grade 5 = (quantitative 54%; EP2 Grade 7 75%; EP2 Grade 7 EP1 Grade 5 = 74%; EP2 or = 37%; ESG1 = 60%; ESG1 Grade 7 = 73%; ESG1 Grade Qualitative) Grade 10 = 33% Grade 10 = 55% 10 = 58% Date achieved 08/02/1999 06/30/2004 06/30/2006 Comments (incl. % Targets were achieved, however, the low completion rates are a concern. achievement) Indicator 2 : A reduction in the average repetition by half for primary and lower secondary education. Value EP1 Grade 5 = EP1 Grade 5 = EP1 Grade 5 = 20.8% (quantitative 25%; EP2 Grade 7 12.5%; EP2 Grade (2004); 11.1% (2005); EP2 or = 31%; ESG1 7 = 21.7%; ESG1 Grade 7 = 20.3% (2004); Qualitative) Grade 10 = 34% Grade 10 = 17% 5.6% (2005); ESG1 Grade 18 10 = 25.1% (2004); 19.3% (2005). Date achieved 08/02/1999 06/30/2004 06/30/2006 Comments Targets were surpassed in the last year (2004-05). The sudden decrease in one (incl. % year needs to be examined more carefully in terms of whether it is a realistic achievement) reflection of learning levels. Indicator 3 : Rate of decentralization of management to the provinces and districts. Value (quantitativeCentralized A more Some financial or educational decentralized decentralization has taken Qualitative) administration system. place. Date achieved 08/02/1999 06/30/2004 06/30/2006 Comments (incl. % Decentralization has begun and will be continued in ESSP II. achievement) (b) Intermediate Outcome Indicator(s) Original Target Values Formally Actual Value Indicator Baseline Value (from approval Revised Achieved at documents) Target Completion or Values Target Years Indicator 1 : An increase in gross enrollment rates. Value (quantitative EP1 Grade 5 = EP1 Grade 5 = 86% EP2 EP1 Grade 5 = 131% or 67% EP2 Grade Grade 7 = 30% EP2 Grade 7 = 47% Qualitative) 7 = 15% Date achieved 08/02/1999 06/30/2004 06/30/2006 Comments (incl. % The achievements in enrollment are phenomenal especially when the Net achievement) Enrollment rate for EP1 is 83%. Indicator 2 : An increase in enrollment in the schools and districts where classrooms are built. Precise data not available. Value (quantitative Equivalent to at least 75% Considering the GERs or Not available of the new capacity above, this has been Qualitative) created. achieved. Date achieved 08/02/1999 06/30/2004 06/30/2006 Comments (incl. % achievement) Indicator 3 : Implementation of at least 80% of the work program for each year Value Initial work By end of project, all Achieved during the (quantitative program was activities will have been last three years of or based on the plan completed according to project Qualitative) of activities. agreement of the Joint mid-term review of 2002. implementation. 19 Date achieved 08/02/1999 06/30/2004 06/30/2006 Comments (incl. % Achieved during the last few years of the project. achievement) 20 Annex 2. Restructuring (if any) Not Applicable 21 Annex 3. Project Costs and Financing (a) Project Cost by Component (in USD Million equivalent) Components Appraisal Estimate Actual/Latest Estimate Percentage of (USD M) (USD M) Appraisal TEACHERS' TRAINING 6.00 0.10 1.67 PEDAGOGICAL SUPPORT FOR TEACHERS 6.20 2.70 43.55 CURRICULUM TRANSFORMATION 1.00 0.60 60.00 LEARNING MATERIALS 6.40 1.30 20.31 ASSESSMENT & EXAMINATIONS 0.30 0.00 .00 DIRECT SUPPORT FOR SCHOOLS 5.00 12.20 244.00 TRAINING OF SCHOOL DIRECTORS 0.90 0.00 .00 SCHOOL & CLASSROOM CONSTR. & REHAB 31.80 51.90 163.21 GIRLS EDUCATION INITIATIVE 4.30 0.00 .00 NON-FORMAL EDUCATION 0.30 0.30 100.00 SPECIAL EDUCATION 0.00 0.00 MINED INSTITUTIONAL CAPACITY 8.30 2.70 32.53 TECHNICAL EDUCATION STRATEGY 0.50 0.40 80.00 Total Baseline Cost 71.00 72.20 Physical Contingencies 0.00 Price Contingencies 0.00 Total Project Costs 71.00 Front-end fee PPF 0.00 0.00 0.00 Front-end fee IBRD 0.00 0.00 0.00 Total Financing Required 71.00 72.20 (b) Financing Appraisal Source of Funds Type of Actual/Latest Percentage of Cofinancing Estimate (USD M) Estimate (USD M) Appraisal Borrower 0.00 0.00 INTERNATIONAL DEVELOPMENT 71.00 0.00 ASSOCIATION 22 (c) Disbursement Profile 23 Annex 4. Outputs by Component The ESSP based on a SWAp approach had five components of which four received IDA support. Except for the last two years, there is limited information on the support received from other donors and the extent to which activities and targets for each component were met. After FASe was established in 2003 and the expectations of the "Economic and Social Plan Evaluation" outlined, there is more comprehensive reporting on the components. Overall, the scarcity of information on component activities and outputs limits the discussion on implementation below. (1) Quality of education (US$108.5 million; IDA: US25.8 million): This component was to improve education quality especially repetition and learning and included seven components. Of the seven sub-components, two components namely the DSS and curriculum transformation were effectively implemented. The level of implementation of the remaining components was uneven and the results mixed. (i) Teacher training (US$24.7million; IDA US$6 million): The implementation of this sub- component to enhance the capacity of teachers was weak, constrained by the absence of a clear- cut and shared strategy for teachers' preservice training in the country. The PAD indicates that at the time of project preparation, GOM was intending to move to a uniform system of presevice training consisting of 10 years of basic education with one year preservice and one year of structured inservice training. Only toward the end of the project after numerous workshops and seminars did the government finally reach consensus on such a strategy. According to the Economic and Social Plan Evaluation (2004) this strategy was a response to the existing "fragmented, erratic and incoherent" models of teacher training that had existed until then. The task of enhancing the capacity of teachers remains a challenge for GOM. For instance, in 2005 about 19,000 untrained teachers were hired to address the increase in enrollment in EP1, almost doubling the number of untrained teachers. While GOM negotiated a shared strategy for teacher training, this sub-component expanded and improved sporadically and unevenly over the project period. 8,563 EP1 teachers were trained at the Centros de Formacao de Professores Primarios, about 9,901 EP2 teachers at the Institutos Magisterio Primario (IMAP), and 7,500 teachers received inservice training through the Instituto de Aperfeicoamento Pedagogico (IAP). 10,180 teachers (about 17 percent of the EP1 teachers) participated in the inservice training (entitled CRESER) undertaken by DANIDA in 2004. Of the US$6 million allocated for this component US$139,933 was spent as other donors constructed five IMAPs and one IAP and rehabilitated continuing education centers (NUFORPES). Distance learning in the provinces expanded in some of the provinces through IAPs. Project funds provided for furniture, photocopying machines, computers and motorbikes. (ii) Pedagogical support for teachers (US$17.7 million; IDA US$ 6.2 million): The project was to increase the capacity of ZIPs or centers formed with a small number of schools (7 to 15 schools) in a phased manner starting with the weaker provinces. The positioning of ZIPs within a cluster of schools makes it a significant institution both with regard to facilitating communities to understand the importance of education and to ensure that schools are sufficiently supported and monitored. Project funds were to be used to support the national program to enhance 75 percent of the ZIPs (840) based on the preparation of a ZIP revitalization plan. With an expenditure of US$2.7 million, basic supplies (bicycles, typewriters, duplicators, glue, note pads, rulers, binding machine, staplers, scissors, and binders) and 2,500 encyclopedias to the ZIPs were provided. The absence of dedicated staff, role definitions and task accountability, undoubtedly, constrained the functioning of this important sub-provincial level institution. There is uniform agreement among department officials that there is a critical need to establish a legal and institutional framework 24 for the functioning of ZIPs in order make them effective. (iii) Curriculum transformation (US47. 1 million; IDA US$1 million): Curriculum revision was one of the successes of ESSP. With the help of a number of donors and US$.5 million IDA funds, MEC through the Instituto National de Desenvolvimento de Educacao developed a relevant and progressive curriculum for Grades 1 to 7. 80 percent of the curriculum is nationally defined while 20 percent is based on the local context (province and district). In order to improve learning and to limit the adverse effects of automatic promotion in EP1 and EP2, GOM also introduced cycles of learning. The first cycle comprises of Grades 1 and 2, the second Grades 3, 4 and 5 and the third Grades 6 and 7. Students are automatically promoted within cycles but can be held back between cycles if learning is inadequate. The new curriculum was introduced in the last year (2004-05) of the project in Grades 1, 3 and 6. The role out of the curriculum in the remaining grades is planned for 2006-07. It is too early to conclude that the new curriculum has had an impact on improving student knowledge and skill, thereby lowering repetition rates. It will be important for GOM in ESSP II to monitor the impact of the curriculum on education quality. Furthermore, there is a need to examine the appropriateness of the curriculum for the shift system widely operational in Mozambique. In the province visited for this ICR, there were three or four shifts, significantly shortening instructional time. A curriculum meant for a regular school day of five to six hours would not work for a school day consisting of four hours. (iv) Learning materials (US$39.9 million; IDA US$6.4 million): The credit was to be used in the supply of textbooks and instructional material, improve book distribution and develop commercial textbook publishing. Supported by bilateral donors and IDA (US$1.3 million) and based on the revised curriculum, a complete set of textbooks for Grade 1 to 6 was prepared. The contracting for the textbooks is consistent with Bank operational guidelines on textbooks and reading materials. The paper weight used in textbook publishing was 18 grams and illustrations used five instead of two colors. In spite of these reforms, several issues remain however, with regards to textbook publishing and production. The initial intention for this activity was for provinces to choose from several sets of textbooks. Copyrights in this case would remain with the publishers for a period of three years. MEC, considering the logistical and financial management issues surrounding the production and distribution of multiple textbooks, decided on one set of textbooks. GOM is concerned that the copyright for the single set of GOM textbooks now belongs to a single external publisher. The government is in the process of regaining copyright. Second, the commercialization of textbook publishing, which was originally intended to reduce the cost of textbooks by introducing competition, has not happened. Instead, the cost of textbooks according to government officials is now about ten times higher than those produced before ESSP. Since the GOM introduced the policy of free textbooks, this cost will increase per pupil costs for MEC. Third, in order to contain costs, MEC orders new textbooks once in three years with the expectation that existing textbooks will be recycled. Visits to schools indicate that this assumption may not be true. About half the students did not have textbooks. Reasons for this could be that the improved quality of textbooks still cannot withstand intensive use by students and/or children do not return them to be reused in the following year. To improve the quality of education, without the availability of alternative reading and reference material, it is critical that every student has a textbook. In ESSP II, it will be important for GOM to revisit the issue of quality, quantity, cost and sustainability with regards to the printing and distribution of textbooks. (v) Assessment and examinations (US$2. 4 million; IDA US$.3 million): In-class evaluations and end of cycle examinations were to be improved in addition to introducing an assessment system to monitor quality. There is no reporting on this sub-component and GOM informed the ICR 25 mission that no work was undertaken. It is to be included in ESSP II. (vi) Direct support for schools (US$13.6 million; IDA US$5 million): As far as Bank funds are concerned, the financing and impact of this sub-component could be described as the most successful. The US$5 million allocated for this component increased to US$12.2 million. A "School quality improvement fund," set up at the school level, provided kits to school committees made up of teachers, parents, and department officials. Each school received US$200 per school to be used for the purchase of school supplies chosen from a list of eligible items such as notebooks, pencils, pens, chalk, erasers, rulers, paper, cabinets, transportation and delivery costs. A social marketing strategy with the systematic dissemination of information to schools and parents using different channels was adopted to support this intervention. Information included authorization, purchasing rules, internal forms required and descriptions of the various items available. DSS provided the much needed basic supplies to schools, energized school councils, encouraged school participation and honed in skills of purchasing and record keeping. Starting in March 2003 with the training of provincial and district education officials, MEC distributed over 8,000 school grants each year. In the second phase of the program 8,100 EP1 schools were benefited and in the third phase, 8400. The subsequent phase of the program to disburse grants on a composite school index, which took enrollment, school shifts, classes, and distance into consideration as well as regional disparities is to be implemented in ESSP II. Visits to schools indicated that while schools had received kits it was not commensurate with the size of the school population or the needs of the school. For example, there would be three or four games for a school with about 1500 students. It will be important for ESSP II to analyze this intervention and to estimate the extent to which the purchased items are indeed having an impact on improving the quality of education. (vii) School director training (US$3.1 million; IDA US$.9 million): According to GOM, 70 percent of the school directors have participated in training supported by other donors. Deputy directors and administrators are also receiving training. A School Director's manual is also being prepared. There was, however, limited clarity on the type of training and its impact. (2) Access to education (US$193.3 million; IDA US$36.4 million): This component with six sub-components was intended to increase access and ensure equity in the distribution of schools. Of the four sub-components, expanding access to education was effectively implemented. (i) School and classroom construction and rehabilitation (US$177.2 million; IDA US$31.8 million): This component with an IDA expenditure of US$51.9 increased access and equity in the distribution of schools. 12000 primary school classrooms with toilets and water were to be constructed during the project. Only 650 classrooms were constructed. GOM decided it would be more useful to utilize IDA funds for the construction of secondary schools rather than primary school classrooms. GOM continued the task of increasing access in EP1, EP2 and ESG1. The phenomenal growth of schools across these three levels is commendable. In EP1, the number of schools rose from 6605 to 8696, EP2 from 448 to 1320, and ES1 from 82 to 156. Therefore, the shift of IDA funding to the construction of ESG2 schools was reasonable and necessary. The issue of access to ESG1 and ESG2 will require continued focus in ESSP II. Instead of 5 ESG1 schools, 6 ESG2 schools were constructed and instead of 2 ESG2 schools to be rehabilitated 6 were rehabilitated. In terms of the construction itself, there was an understandable shift in the attention of the government to construct more visible and impressive structures in response to the growing demand for secondary education. This was in contrast to the initial objective of building smaller and more dispersed schools and as a result fewer communities benefited from the construction program. The schools visited were indeed 26 large, well designed and constructed. Overall the number of ESG2 increased from 13 to 35. Of the 373 staff houses that were to be constructed for primary schools with project funds, 236 were completed. However, an additional 69 staff houses not initially planned was constructed for ESG1 schools. The task to rehabilitate 12 dormitories was not undertaken. (ii) Girls' education initiatives (US$8.9 million; IDA US$4.3.million): No activities were undertaken with regard to girls' enrollment, which was to include the provision of scholarships and enhancing community awareness of this issue. Though no explicit reference to a gender sensitive curriculum, this was part of the curriculum reform that took place for the whole country. Notwithstanding, the limited impact of the program on improving girls' participation is a concern. (iii) Nonformal education (US$5.5 million; IDA US$.3 million): GOM approved a Literacy, Adult Education and Non-formal education strategy in November 2001. The first phase approved in 2001-02 was implemented as a pilot in three provinces and these efforts were expanded in the second phase. According to GOM, Bank assistance to adult education was to provide diagnostic and strategic advice. US$.2 million of IDA funds was spent supporting curriculum development and technical equipment. (iv) Special education (US$3.1 million; IDA US$.9 million): The project did not implement this sub-component, which involved developing and testing a model for the education of children with special needs including teacher training, developing instructional tools and construction. (3) MINED institutional capacity (US$325.4 million; IDA US$8.3 million): This component with four subcomponents was to improve the administrative and management capacity. According to MEC staff, reasons for not implementing this component was that the consultant report on the organization of capacity building activities was unable to provide a relevant and appropriate roadmap for activities. (i) Organizational structure and decentralization (US$318.5 million; IDA US$4.1 million): Except for some capacity building of MEC, the impression among government officials is that this subcomponent was not fully implemented. Seminars on education at various levels, school mapping exercises, establishing information systems and policy changes with regard to teachers and other staff as referred to in the PAD did not take place. US$.8 million of IDA funds was expended in the project. (ii) Policy and planning (US$1.6 million; IDA US$1 million): This subcomponent was partially implemented with the utilization of US$.3 million IDA funds. The capacity in MEC to analyze, monitor and evaluate indicators of education performance has significantly improved over the project period. Though there was less emphasis on assessing the connections between interventions, outputs and outcomes crucial for understanding project impact. Funds were to be used to improve parent and community participation, which did not take place. In addition, there was limited capacity development at the provincial, district and school levels. In order for GOM to progress on quality indicators such as learning and retention, it will be critical to develop the capacities and skills for effective and efficient policy analysis, planning, administration and monitoring of education at the provincial and sub-provincial levels. (iii) Financial management (US$3.1 million; IDA US$2.2 million): Decentralized financial management was to be developed in the program. Again, this subcomponent was partially implemented with some improvement in the capacity of provincial level departments to plan and create budgets. IDA US$1.7 million of IDA funds was utilized. 27 (iv) Monitoring and evaluation (US$2.2 million; IDA US$1 million): The subcomponent to strengthen monitoring and evaluation was implemented to some extent with an expenditure of US$.8 million. Procurement and financial management expertise was developed through the hiring of skilled personnel in the project. Detailed information was provided on IDA funding of project components and agreed upon development objectives indicators. Again, the system of monitoring and evaluation at the provincial level will require considerable attention in ESSP II. (4) Technical Education Strategy (US$42.1 million; IDA US$.5 million): This component was successfully implemented with US$.4 million utilized. Based on the sector work entitled "Skills Development in Mozambique: Issues and Options" the project entitled "Technical and Vocation Education Training Project" was prepared. This project became effective June 28, 2006. Additional financing: Two additional items not identified in the PAD were financed by ESSP. First, the HIV/AIDS and Education national workshop. This critical intervention accelerated GOM's response to the aids crisis focusing on the school as the center to combat the disease. Activities included the planning of appropriate policies and action plans for managing the crisis, preventing infection, and ensuring the protection and care of orphans and vulnerable children. Second, IDA funds supported the implementation of a de-worming program for EP1 children. De-worming raises the health status of students, which in turn improves school performance. 28 Annex 5. Economic and Financial Analysis (including assumptions in the analysis) The PAD for ESSP argued for IDA support for education based on the criteria of efficiency and equity. Basic education is supposed to increase productivity, lower fertility rates, improve the health of the population especially infants and increase social cohesion. While it is difficult to make direct correlations as ESSP was not fully implemented, improved productivity is evident in the increase in GDP from 2. 9 percent in 1999 to 5 percent in 2005 and the increase sustained GDP growth rate of 8 percent. The attached table summarizes improvements made in health indicators. In education intra-province inequity is also being addressed through the focus on weaker provinces. Health Indicators for Mozambique Indicators 1997 2003 Under five mortality rate (per 1000 live births) 219 178 Maternal mortality rate (per 100000 live births) 1000 408 Life expectancy at birth 42.3 46.3 Children immunized against measles 57.5 76.7 Infant mortality 146 101 Fertility rate (births per woman) 6.3 5 Births attended by skilled professionals 44.2 47.7 The benefit-incidence of education can be judged by the reduction in poverty head count from 69 percent in 1997 to 54 percent in 2003. A large part of this decrease is due to the increase in individual wages as a result of additional years of schooling. It is estimated that an extra year of education increases wages by about 3 percent in the agriculture sector and between 5 and 15 percent in non-farm work. The following table provides the increases in the rate of return between 1996 and 2002 for graduates at the secondary and higher secondary levels. Simple Rates of Return to education, predicted monthly income (USD 2002 prices) Level of education Year Male Female EP2 and ESG1 1996 20. 2 17. 7 2002 29. 5 18. 9 ESG2 1996 33. 7 29. 6 2003 52. 5 33. 7 The internal efficiency of the system based on the number years taken to complete EP1 and EP2 appears to have improved based on the improvement in repetition rate. However, this needs to be monitored closely in ESSP II as more robust calculations of dropout, transition, repetition and completion become available. More importantly, the efficiency of the system will have to be judged in the future on whether students have acquired the required knowledge and skill. 29 Annex 6. Bank Lending and Implementation Support/Supervision Processes (a) Task Team members Names Title Unit Responsibility/Specialty Lending Supervision/ICR Noel Kulemeka Senior Economist AFTH1 Isabel Duarte A. Mutambe Program Assistant EASUR Joao Tinga Financial Management Analyst AFTFM Alexandria Valerio Sr Education Spec. LCSHE (b) Ratings of Project Performance in ISRs No. Date ISR Archived DO IP Actual Disbursements (USD M) 1 05/20/1999 Satisfactory Satisfactory 0.00 2 12/22/1999 Satisfactory Satisfactory 1.00 3 05/18/2000 Satisfactory Satisfactory 1.22 4 10/30/2000 Satisfactory Satisfactory 1.35 5 12/05/2000 Satisfactory Unsatisfactory 1.52 6 03/01/2001 Satisfactory Unsatisfactory 1.52 7 10/23/2001 Satisfactory Unsatisfactory 2.68 8 03/05/2002 Satisfactory Unsatisfactory 3.44 9 08/02/2002 Satisfactory Unsatisfactory 6.00 10 11/24/2002 Satisfactory Satisfactory 8.65 11 05/25/2003 Satisfactory Satisfactory 15.70 12 11/19/2003 Satisfactory Satisfactory 22.78 13 12/12/2003 Satisfactory Satisfactory 23.68 14 05/28/2004 Satisfactory Satisfactory 30.99 15 12/01/2004 Satisfactory Satisfactory 42.07 16 05/12/2005 Satisfactory Satisfactory 47.65 17 12/13/2005 Satisfactory Satisfactory 61.10 18 06/15/2006 Satisfactory Satisfactory 71.80 (c) Staff Time and Cost Staff Time and Cost (Bank Budget Only) Stage of Project Cycle USD Thousands No. of staff weeks (including travel and consultant costs) Lending FY92 0.36 FY93 3.02 30 FY94 13.23 FY95 130.93 FY96 252.92 FY97 64.01 FY98 3.89 FY99 0.00 FY00 0.00 FY01 0.00 FY02 0.00 FY03 0.00 FY04 0.00 FY05 0.00 FY06 0.00 Total: 468.36 Supervision/ICR FY92 0.00 FY93 0.00 FY94 3.26 FY95 3.12 FY96 0.00 FY97 29.44 FY98 204.70 FY99 112.80 FY00 68 184.83 FY01 43 178.69 FY02 53 115.99 FY03 48 84.63 FY04 35 87.07 FY05 30 27.64 FY06 22 87.07 FY07 8 0.00 Total: 307 1119.24 31 Annex 7. Detailed Ratings of Bank and Borrower Performance Bank Ratings Borrower Ratings Ensuring Quality at Entry: Moderately Satisfactory Government: Satisfactory Quality of Supervision: Satisfactory Implementing Agency/Agencies: Not Applicable Overall Bank Overall Borrower Performance: Satisfactory Performance: Satisfactory 32 Annex 8. Beneficiary Survey Results (if any) 33 Annex 9. Stakeholder Workshop Report and Results (if any) 34 Annex 10. Summary of Borrower's ICR and/or Comments on Draft ICR Summary of GOM's evaluation of the ESSP Overall, the IDA credit ESSP significantly contributed to the achievement of development objectives as measured by access, quality, and equity in primary and secondary education. Further, ESSP contributed to capacity building both at the MEC central level and at the decentralized levels. Context of Harmonization and Alignment: An important feature of this project is the fact that the ESSP project was designed in the context of establishing a sector wide-approach and a coordination mechanism between MEC and the donors. The Government agreed with donors, civil society and agencies and institutions that all 1999-2003 funds for the education sector, including the IDA Credit, would be committed towards the implementation of the activities described in the ESSP. The education sector established a funding mechanism that uses IDA procurement and financial management procedures entitled FASe in 1999. However, FASe only became fully functional in 2003. Even though the Bank was one of the signatories to the original Memo of Understanding for the FASe, Bank funds were never pooled with FASe and it continued to operate in parallel project financing. This created some weaknesses during the implementation of ESSP but at the same time allowed the necessary flexibility and more importantly allowed for the development of greater internal capacity in MEC, Directorate of Finance and Administration and in Provincial Directorates. At the same time the slow start of the implementation of IDA funds brought gains to both GOM and the partners in terms of policy dialogue with GOM and between partners. It is revealing that throughout the process it was as much a learning experience for MEC as for the partners. The IDA Credit of 71 million USD available to contribute towards the 5 years of the ESSP covered approximately 10% of the total ESSP costs. Other financing agencies and the Government committed to the remaining part. Other programs or funding agencies contributing to the ESSP are ADB II, III and IV, IDB I, FASE, DANIDA, RNE, PASE, JICA, KfW and various NGO implemented projects. Civil Works Results and lessons learnt: The results from the various programs for civil works between 1999 and 2005 are described in detail in the report but the main ones are the construction of 6,000 primary school classrooms (out of which 650 by the IDA Credit) and the construction or rehabilitation of 30 secondary schools and IMAPs (out of which 12 by the IDA Credit). Comparing the results with the initial objectives show that only a small proportion of the number of schools that were included in the ESSP have been constructed and that only the total number of Secondary Schools constructed is more or less the same as what was planned. Comparing the results of the IDA Credit, a similar observation is made, with additional works done in Secondary education and less work done in primary and teacher's education. The results and costs however are related to the budget available, which show some difficulties that were present from the very start of the program. Some lessons learned are presented below. Definition of responsibilities: When different financing agencies are contributing to the same project (not part of a funding pool), as is the case with the ESSP, it would be useful to indicate in the PAD how responsibilities are defined. The PAD reflects sector support, but the DCA contradicts this approach by earmarking specific activities to be implemented under the IDA 35 Credit. These fixed allocations to certain components and even to specific activities like the civil works, made it necessary to reallocate funds in order to address changed needs. Institutional arrangements: Define institutional arrangements with clear responsibilities for different institutions. Especially considering procurement and implementation, if not within one office, there must be close collaboration and firm agreements on responsibilities, communication, and information and so on. It is recommended to keep these two activities separate because procurement and coordination of implementation are two different specialties and because a separation increases internal control. Cooperation: Cooperation between directorates/departments involved in implementation is sometimes problematic and has great influence on processes and on the results. The MEC reorganization gives possibilities for a closer cooperation, also with other directorates. Complex works
Группа Всемирного банка · Implementation Completion and Results Report
Mozambique - Education Sector Strategic Program Project (ESSP)
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Implementation Completion and Results Report
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Всемирный банк