Philippines - Third Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 6279 PROJECT PERFORMANCE AUDIT REPORT PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH) June 27, 1986 Operations Evaluation Department 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. FOR OFFICIAL USE ONLY THE WORLD BANK Washington, D.C. 20433 U.S.A. Office of Offecto-Ceral Opeates Evalution June 27, 1986 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJL-T: Project Performance Audit Report: Philippines Third Education (Textbook) Project (Loan 1224T-PH) Attached, for information, is a copy of a report entitled "Project Performance Audit Report on the Philippines Third Education (Textbook) Project (Loan 1224T-PR)" prepared by the Operations Evaluation Department. Attachment This document has a restricted distribution and may be used by recipients only in the performance FOR OFFICIAL USE ONLY LIST OF ACRONYMS BEE - Bureau of Elementary Education BETDECCO - Basic Education Textbooks Development Coordinating Council CDC - Curriculum Development Center DHS - Development High School EDPITAF - Education Development Projects Implementing Task Force ELC - Elementary Learning Continuum IMC - Instructional Materials Corporation MECS - Ministry of Education, Culture and Sports MIS - Management Information System NEDA - National Economic Development Authority OBM - Office of the Budget Management OPS - Office of Planning Services PCSPE - Presidential Commission to Survey Philippine Education PEM - Philippine Education Management PNC-LSC - Philippine Normal College Language Study Center PRODED - Program for Decentralized Educational Development RSDC - Regional Staff Development Center SOUTELE - Survey of Outcomes of Elementary Education SSC - Social Studies Center of the Education Ministry TBS - Textbook Board Secretariat UP - University of the Philippines UPSEC - University of the Philippines Science Education Center ThIs document hs a restricted distribution and may be used by recipients only in the performance of their officisa duties. Its contents may not otherwise be dslad without World Smik autharintlan. PROJECT PERFORMANCE AUDIT REPORT PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH) TABLE OF CONTENTS Page No. Preface ******************************* Basic Data Sheet ................................................... ii Ev4luation Summary .............................................. v PROJECT PERFORMANCE AUDIT MEMORANDUM I. PROJECT BACKGROUND ....................................... 1 II. PROJECT IMPLEMENTATION AND OUTCOMES ...................... 3 Overview ............................................. 3 Institutional Development ................................ 4 Textbook Production and Distribution .................. 4 Teacher Training ......................................... 6 Physical Facilities .................................... 6 Management Information System and Preinvestment Study .... 7 The Bank's Role ........................ ................. 7 Tertbooks and Student Achievement ....................... 8 III. MAIN ISSUES ...............................9........... 9 Institutional Development .........0..................... 9 The Private Sector ............................... ....... 9 Costs ................................................ 10 Attachment I: Comments from the Borrower .......................... 13 PROJECT COMPLETION REPORT Highlights ......................................................... 17 I. COMPLETION REPORT PREPARED BY THE GOVERNMENT .................. 19 A. Introduction and Background .............................. 19 B. Project Design ........................................... 21 C. Project Implementation ................................ 25 D. Project Costs ......... ..* ** 49 E. Outstanding Issues ............................... .. 55 F. Conclusions .......................................... 56 II. OBSERVATIONS AND LESSONS LEARNED BY THE BANK .................. 57 Observations ............................................. 58 Lessons Learned by the Bank .............................. 59 TABLE OF CONTENTS (Contd.) Annexes 1. P.D. No. 687 Reorganizing the Textbook Board 2. LOI No. 873 Transferring the Textbook Project from EDPITAF to the Textbook Board 3. MEC Order No. 27, s. 1981, Creating the Instructional Materials Corporation Management Team 4. Project Buildings and Textbook Warehouses by Location, Size and Construction Cost 5. Equipment Procured, by Type and Beneficiary Institutions 6. Foreign and Local Consultants Engaged, by Field of Expertise and Beneficiary Institution 7. Fellowship Availment, by Area of Study and Beneficiary Institution 8. Estimated and Actual Project Cost, by Year and Type of Expenditure - i - PROJECT PERFORMANCE AUDIT REPORT PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH) PREFACE This is a performance audit of the Third Education Project in the Philippines, for which a Third Window loan of USS 25.0 million was approved in March 1976 and a Loan Agreement was signed in April 1976. The loan account, which became effective in July 1976, was zlosed on January 10, 1984 when the last disbursement was made to disburse the loan completely except US$270,000 which had been cancelled in March 1982. The audit report consists of a Project Performance Audit Memorandum (PPAM) prepared by the Operations Evaluation Department (OED) and a Project Completion Report (PCR) dated July 20, 1984. The PCR consists of two chap- ters: Chapter I was prepared by the Borrower, Chapter II by the East Asia and Pacific Region Education Projects Department. The PPAM is based on a review of material in Bank files, including the Staff Appraisal Report No. 945a-PH of February 27, 1976; the President's Report No. P-1777-PH of March 4, 1976; the records of the Board discussion of this project on March 16, 1976; the Loan Agreement dated April 8, 1976; cor- respondence with the Borrower concerning this project; Bank reports on pre- ceding and aubsequent education projects in the Philippines; the PCR and dis- cussion with Borrower and Bank staff associated with this project. Selected project institutions were visited by an OED mission to the Philippines in December 1985. The PCR has valuable project information which the PPAM supplements with other information from Bank records and with comments on certain aspects of implementation experience of this pioneering project. The Operations Evaluation Department gratefully acknowledges the cordial cooperation accord- ed the OED mission by the Ministry of Education, Culture and Sports. Following customary OED procedures, copies of the draft PCR were sent to the Government for comments in April 1986. Comments received have been taken into account in finalizing the report and are reproduced as Attachement I. - 1i - PROJECT PERFOMANCE AUDIT REPORT PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PR) BASIC DATA SHEET KEY PROJECT DATA Appraisal Actual or Estimate Current Estimate Total Project Cost (US$ million) 51.6 45.96/8 Underrun (2) - 112 Loan Amount (US$ million) 25.0 25.0 Disbursed 25.0 24.73 Cancelled 0.27 Repaid ) to 01/15/86 3.295 3.26 Outstanding ) 21.705 21.47 Date Physical Components Completed June 1978 June 1983 -in Months Since Loan Signature 27 87 Proportion Comptted by Above Date (2) 40/ 100 Proportion of Time Overrun (2) - 222 Date Software Components Completed Dec. 1979 Dec. 1981 --in Months Since Loan Signature 45 69 Proportion of Time Overrun (2) 65/c 100 Institutional Performance Good Cumulative Estimated and Actual Disbursements (US$ million) FY 77 78 79 80 81 82 83 84 (a) Appraisal Eat. 1.0 5.7 12.9 19.0 25.0 (25.0) (25.0) (25.0) (b) Actual 3.0 5.0 7.6 10.9 19.9 21.9 23.6 24.7 (c) Actual/Estimate (2) 300 88 59 57 80 88 94 99 OTHER PROJECT DATA Original Actual or Item Plan Revisions Estimated Actual First Mention in Files 02/27/73 Government's Application 08/14/73 Negotiations 01/16/76 Board Approval 03/16/76 Date of Loan Agreement 04/08/76 Effectiveness Date 06/06/76 08/06/76 07/29/76 Closing Date 06/30/81 06/30/82; 06/30/83 06/30/83/d Borrower The Republic of the Philippines Executing Agency Education Development Projects Implementing Task Force (EDPITAF) Fiscal Year of Borrower July 1- June 30/e Follow-up Project Name/i Elementary Education Sector Loan Loan Number Loan 2030-PH Amount (US$ Million) 100.0 Date of Loan Agreement Augtt 21a 1981 /a See PPAK, par&. 24 P Estimated on basis of supervision report dated July 18, 1978. Te Estimated on the basis of over 17 million textbooks distributed compared with the target of 27 million textbooks. /d Final disbursement was on January 10, 1984., 7e_ From 1977, the fiscal year was January I-December 31. 7? The follow-on project was the Fourth EducatJ,)n Project, Loan 1374-PH, with a US$25.0 million loan and Loan Agreement signed on March 25, 1977. - iii - MISSION DATA Missicn Sent Month/ No. of No. of Staff Date of by Year Weeks Persons Weeks Report Identification Bank 12/74 1.0 2 2.0 01/--/75 Preparation UNESCO 03/75 4.0 6 24.0 04/--/75 Appraisal Bank 06/75 5.0 5 25.0 02/27/76 Total 51.0 Supervision 1 Bank 08/76 0.9 1 0.9 09/28/76 Supervision 2 " 04/77 1.7 1 1.7 06/21/77 Supervision 3 " 10/77 0.7 1 0.7 10/12/77 Supervision 4 " 12/77 0.7 1 0.7 01/31/78 Supervision 5 " 06/78 0.6 1 0.6 06/30/78 Supervision 6 " 07/78 0.5 1 0.5 07/18/78 Supervision 7 " 11/78 0.5 1 0.5 12/13/78 Supervision 8 " 09/79 0.4 2 0.8 10/01/79 Supervision 9 " 03/80 1.7 2 3.4 04/11/80 Supervision 10 " 11/81 0.3 3 0.9 01/08/82 Supervision 11 " 07/82 0.3 2 0.6 08/20/82 Supervision 12 " 10/83 0.3 1 0.3 11/15/83 Completion " 10/83 0.3 1 0.3 07/20/84 Total 8.9 11.9 STAFF INPUT (Staff Weeks) FY 73 74 75 76 77 78 79 80 81 82 83 84 85 Preparation 0.6 5.1 62.1 1.4 Appraisal 11.8 40.3 Negotiations 11.5 Supervision 3.6 23.1 17.1 6.9 8.9 0.6 2.4 1.2 14.1 0.4 Total 0.6 5.1 73.9 56.8 23.1 7.1 6..9 0.6 2.4 T2 1471 0.4 - iv - COUNTRY EXCHANGE RATES Name of Currency (Abbreviation) - Peso (P) Exchange Rates: /a US$-P P=US$ Appraisal Year: 1975 - 7.40 0.135 Intervening Years: 1976-1982 - 7.80 0.129 Completion Year 1983 - 14.00 0.071 ALLOCATION OF CREDIT PROCEEDS (US$ million) Original Revised Actual b Category Allocation Allocation Disbursements (07/0279TTT 708/82) 1. Equipment, Furniture 9.750 19.109 19.109 18.611 and Paper 2. Technical Assistance 0.750 1.191 1.191 1.152 3. Printing and Distri- bution of Textbooks 4.250 2.566 2.296/c 2.893 4. Civil Works, including related professional fees 1.000 2.000 2.000 1,724 5. Textbook development and teacher training 1.600 0.134 0.134 0.350 4. Unallocated 7.650 - 5. Cancelled 0.270 0.270 TOTAL 25.000 25.000 25.000 25.000 /a Source: International Financial Statistics, Vol. XXXVII, No. 12, Dec. 1985 /b As of January 10, 1984 7e US$270,000 was cancelled on March 8, 1982 - v - PROJECT PERFORMANCE AUDIT REPORT PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH) EVALUATION SUMMARY Introduction This project was identified and prepared in 1974 and appraised in 1975. Total project cost, including contingencies, was estimated at US$51.6 million equivalent, and the foreign exchange was estimated at US$25 million, about 49% of the total cost. A Bank Third Window loan of US$25 million equivalent to meet the foreign exchange cost of the project was approved in March 1976. The Loan Agreement was signed in April 1976, and the loan was declared effective on July 29, 1976, after one postponement. The total actual project cost is estimated at US$45.96 million equivalent, 11% below the appraisal estimate. Of the loan amount, US$24.73 million equivalent was disbursed and US$270,000 was cancelled in March 1982. The loan account was closed on January 10, 1984 when the last disbursement was made. Objectives The main project objective was to develop the Government's institutional capability to produce and distribute instructional materials for the use of public elementary ".d secondary schools. A subsidiary objective was to establish a management information system and carry out a preinvestment study on the use of educational mass media. To achieve these objectives, the project provided the necessary buildings, furniture, equipment and technical assistance to establish or extend five curriculum development centers, a textbook distribution system consisting of one central and 107 provincial/subprovincial warehouses for storing and transporting books from the printers to the schools. The project was to produce and distribute 27 million textbooks (comprising 75 titles) as the first phase of an eight-year program to produce 98 million textbooks by 1984. Implementation Experience The project has been an outstanding success, which may be attributed to the strength and dedication of the two main, complementary implemtntation agencies, the Education Development Projects Implementation Task Force (EDPITAF, responsible for overall implementation) and the Textbook Board Secretariat (TBS, responsible for textbook development, printing and - vi - distribution). Implementation was expected to be completed in four years; actual implementation, however, took over 7-1/2 years. The delay was caused mainly by the construction of the central TBS warehouse-office complex. Physical consty,ction had about 220% time overrun; textbook development, including staff training, had a 53% time overrun. Results The preject achieved its main objective when the temporary TBS was converted to the Instructional Materials Corporation (IMC), with a permanent status as a public corporation. The project produced and distributed 32 million textbooks and teachers' guides, compared with the appraisal objective of 27 million books. It reduced the textbook-student ratio from 1:10 to 1:2 in about 85% of the subjects. The distribution of 32 million books to subjects 40,000 schools was made possible by the establishment of a distribu- tion network based on a central warehouse in Manila and 152 provincial and subprovincial warehouses. About 368,000 teachers, supervisors, principals and other administrators were trained to use the new instructional materials, compared with the appraisal target of 250,000 teachers. The Management Information System (MIS) was established, as planned, and is now responsible for collecting, processing, generating and distributing educational data to all government agencies. It provides an essential support service to the IMC for textbook production and distribution. Technical assistance was effec- tively used to develop the TBS, its related agencies like the Curriculum Development Centers (CDCs), and the MIS. The Bank has continued its support for the development of the Government's institutional capability in textbook production through the follow-up project financed under Loan 2030-PH. This project (Loan 1224T) has helped to produce information through evaluation studies showing that the availability of reading materials is one of the most consistent determinants of better learning and that investments in textbooks are one of the most effective means of improving student achievement. Sustainability The establishment of the IMC as a permanent institution responsible for instructional material production and distribution leaves no doubt about the project's sustainability, particularly when the Government is directly responsible for its operating cost as well as the cost of producing and dis- tributing books for schools. The issue, however, is whether the IMC's own sustainability is best nurtured by buegetary dependency on the Government or financi-.1 autonomy through income-generating activities. Part of this issue relates to the staff compensation and benefit plan for IMC which must be able to comete with the private sector to attract and retain competent profes- sional and support personnel because staff stability is essential to the con- tinuous development, production and distribution of quality books to schools. - vii - Main Findings and Lessons This project has yielded a rich lode of information on how to design and implement a textbook development project. When the follow-up project (Loan 2030-PR) is completed (expected to be in December 1986), the Bank, perhaps through OPS/EDT, should assess the textbook development experience of both projects and, if relevant, that of the first and the second Indonesia textbook projects, with a view to producing guidelines for similar future projects. After an appropriate interval, OED should carry out an impact evaluation of the textbook projects in the Philippines and Indonesia. For the present purpose, however, the audit presents the following main findings and lessons to summarize or supplement those presented in the PCR (paras. 6.01-7.10). (a) To sustain the Borrower's textbook development capability, the project should focus on institution building, a gradual process requiring continuous support from the Borrower and the Bank (PPAM, paras. 11, 21-22; PCR, paras. 5.02-5.04, 7.08). (b) In a free enterprise system where a viable private publishing industry exists, the long-term development of a strong book industry depends on cooperation between the Government and the private sector. In this case there is a need to clarify the role of private publishers in relation to IMC in manuscript preparation and textbook production (PPAM, para. 23; PCR, paras. 5.05, 7.16, 7.10). (c) To avoid construction delays which hold up implementation, project sites should be finalized before loan effectiveness (PPAM, para. 17; PCR, para. 3.62). (d) The project experience has shown that, among other things, the minimum time needed to develop a textbook (curriculum and manuscript preparation, field testing, manuscript revision, book printing and distribution) is three years, a crucial factor in determining the time required for overall project implementation (PPAM, para. 13; PCR, para. 3.18). - 1 - PROJECT PERFORMANCE AUDIT MEMORANDUM PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH) I. PROJECT BACKGROUND 1. The Third Education Project,1/ first mooted in early 1973, typi- cally started out in search of a theme. A UNESCO reconnaissance mission in April 1974 identified no less than ten project items, from arts and crafts for industrial schools to veterinary medicine for agricultural colleges. A follow-up Bank mission in December 1974 narrowed down the project to textbook development and agricultural and rural development. When the project was appraised in mid-1975, textbook development became the focus (the agricul- tural development component subsequentlv formed the nucleus of the Fourth Education Project, Loan 1374-PH). Board approval for the project was secured in March 1976; the Loan Agreement was signed in April 1976; and the loan became effective in July 1976. 2. The main purpose of the project was to develop the Borrower's institutional capability to ensure the continuous development and supply of relevant textbooks and the accompanying teachers' guides. This required the establishment or strengthening of local institutions to develop textbooks and a system to distribute them nationwide. The project was a follow-up to the Second Education Project, Credit 349-PH, signed in January 1973, which assisted the University of the Philippines Science Education Center (UPSEC) and the Ministry of Education, Culture and Sports (MECS) Social Studies Center in curriculum and textbook development in mathematics, science and social studies. Under Credit 349 selected textbooks were being tested and were scheduled for printing in 1976. The Third Education Project would therefore help the Government to expand the textbooks covered by the program under Credit 349 and to begin a larger-scale production and distribution of textbooks developed and tested under the Second Education Project. The timing of the Third Window loan made it possible to continue the Bank's asso- ciation with the Government's textbook development program. 3. Subsidiary objectives were to: (a) establish an educational man- agement information system which would provide educational managers with 1/ The original impetus to this project may be attributed to the 1969 Presidential Commission to Survey Philippine Education, whose report in 1970 recommended, among other things, the upgrading of basic education. Basic education was believed to be of poor quality because most schools lacked appropriate textbooks and other teaching/learning materials. The provision of textbooks was therefore one of the most logical actions to address the issue of poor quality in education. updated information on the school system, and (b) carry out a preinvestment study on the use of educational mass media. 4. To meet the above objectives the project would expand and strength- en the management of textbook development by staff training and by providing a building for a workshop and central warehouse for the TBS. In support of the above textbook development management, the project would also establish or extend (a) five curriculum development centers to develop curricula, write, test and revise textbooks in five primary and five secondary school subjects; (b) fourteen staff development centers and 34 development high schools as a network for testing textbooks and training about 250,000 teachers in the use of the new textbooks; and (c) a distribution system con- sisting of one national (central) and 107 provincial and subprovincial ware- houses (of which 43 would be new ones built under this project) for storing and transporting books from the printers to the schools. The objective was the development of 75 new titles (39 textbooks, 36 teachers' guides) and the manufacture and distribution of 27 million textbooks. This would be the first phase of an eight-year program to introduce, by 1984, about 98 million new textbooks into public primary and secondary schools. Further details of the project content are summarized in the PCR, Table 2.01. 5. The total project cost, including contingencies, was estimated at P387.0 million or US$51.6 million equivalent. The foreign exchange was esti- mated at about P189 million or US$25 million equivalent, representing about 49% of the total cost. The Bank would provide a Third Window loan of US$25.0 million to meet 100% of the foreign exchange cost with a term of 25 years, including a seven year grace period, and interest at 4-1/2% per annum. The Government would finance the balance of US$26.6 million equivalent. 6. Loan effectiveness was declared on July 29, 1976, after the Govern- ment fulfilled the requirements under Section 6.01 of the Loan Agreement whereby the main management staff, including a director, were appointed to the TBS which would be responsible for implementing textbook development, production and distribution. Intensive preparatory work by EDPITAF and Bank staff enabled the project to get off to a running start, as evidenced by the first year's disbursements which were at 300% of the appraisal estimate, but unexpected problems eventually slowed down disbursements. Overall implemen- tation was expected to take about four years, with physical facilities expected to be completed within two years of loan effectiveness. Actual implementation, however, took over 7-1/2 years. The delay was caused mainly by difficulties in determining the site for the construction of the central TBS warehouse which had also been expanded to include an office complex. In physical construction, the project had a time overrun of about 220%. Soft- ware development, including staff training, had a 53% time overrun. 7. This project has been an outstanding success. Its main objective of institutional development was achieved when the Textbook Board became the regulatory Instructional Materials Council and the TES became the executive - 3 - Instructional Materials Corporation (IMC).2/ The project produced and dis- tributed 32 million textbooks and teachersT-guides, comprising 92 elementary and high school titles, compared with the appraisal objective of 75 titles and 27 million textbooks. It achieved an average textbook-student ratio of 1:2 in about 85% of the subjects, compared with the ratio of 1:10 before the project. All this was made possible by the establishment and further devel- opment of five CDCs (to develop curricula and prepare manuscripts for textbooks), 15 Regional Staff Development Centers and 34 Development High Schools (to test new textbooks and train teachers), and a central textbook warehouse in Manila and 152 warehouses (at the regional, subregional, divi- sional and district levels of the MECS administrative system) which formed a network for the distribution of books to about 40,000 public elementary and high schools throughout the country. The central warehouse an( 54 new provincial warehouses (11 more than the appraisal estimate) were built with project funds. The TBS office complex was built with mainly Government funds. The project also successfully established a Management Information System (MIS) in the MECS Office of Planning Services. 8. Technical assistance was effectively used to support project objec- tives. Seven foreign consultants were used to advise on textbook development and publishing; one consultant helped to develop the MIS; and 34 short-term consultants assisted in the preinvestment study of communication technology in education. In addition, about 140 man-months were used to train TBS and CDC staff. 9. The total actual project cost, according to the PCR, was estimated at about US$45.1 million, about 13% lower than the appraisal estimate of US$51.6 million (for further discussion of project cost, see para. 24). From the loan of US$25.0 million, US$24.73 million was disbursed and the loan account was closed on January 10, 1984. The balance of US$270,000 had been cancelled in March 1982. II. PROJECT IMPLEMENTATION AND OUTCOME Overview 10. The project's success was due largely to the strength of the two complementary implementing agencies, EDPITAF and TBS. EDPITAF was respons- ible for physical facilities, technical assistance, finance and accounting, evaluation and liaison with the Bank, and the TBS was responsible for all activities in the development, production, distribution and evaluation of textbooks and the inservice training of teachers in the use of the new text- books. However, during the first three years following the establishment of 2/ This was the result of Presidential Executive Order No. 806 of May 27, 1982, and Presidential Letter of Instruction No. 1463 of May 31, 1985, which formally established the IMDC. the TBS in July 1976 (para. 6), EDPITAF supervised the operation of the TBS. In July 1979, in accordance with plans agreed upon between the Bank and the Government, the TBS was formally transferred to the Textbook Board which therefore assumed the administrative and financial responsibility for Ull textbook-related activities (PCR, Anne:: 2). By December 1981, the TBS had 130 staff, including 67 professionals (PCR, paras. 3.01, 3.02 and 3.07). Institutional Development 11. The project's main objective of institutionalizing textbook deve- lopment was achieved in stages; each stage was carefully prepared and nurtur- ed by the Bank and the Government. The evolution of the TBS from EDPITAF tutelage to an autonomous secretariat under the Textbook Board, and finally to the new IMC in 1985 mirrors the growth from an apparently temporary organization into a permanent institution. This was done with the constant urging of the Bank through supervision missions and communication with senior government officials. Despite the INC's permanent status, however, its staff conditions of service and budgetary dependency on MECS raise questions abouit the long-term sustainability of textbook development, an issue discussed in the next chapter. Textbook Production and Distribution 12. As part of the aim of strengthening the institutional framework for textbook production, the project financed the development of five CDCs3/ which were responsible for writing manuscripts for textbooks in science, mathematics, Pilipino, English, social studies and other subjects. Up to December 1981 only three of the CDCs produced manuscripts for textbooks and teacher guides which were printed and distributed (PCR, paras. 3.03-3.06). Through these CDCs, the 15 Regional Staff Development Centers (RSDCs) and 34 Development High Schools (DHSs), the TBS developed a system for manuscript preparation, testing in schools, revision before final printing and distribu- tion--a cycle requiring a minimum of three years--and training teachers how to use the new textbooks. To be sure, the project initially faced difficul- ties arising from coordinating the work of the various CDC writing groups to ensure a proper scope-and-sequence content in textbooks for different school grades, synchronizing manuscript preparation with the CDCs' internal approval system, and supervising inexperienced editorial staff (PCR, paras. 3.10- 3.11). The Basic Education Textbook Development Coordinating Council (BETDECCO), set up to advise on priorities for textbook development, did not function as planned. Weak collaboration between the CDCs and the curriculum unit of the Bureau of Elementary Education (BEE) led to some confusion among teachers when the BEE issued the new Elementary Learning Continuum with which 3/ One of these centers responsible for developing the curriculum and materials for agro-fisheries was taken out of the project in 1979 and its work was transferred to the Technological University of the Philippines. - 5 - the new TBS textbooks were not in harmony. A 1980 review of textbooks first issued in 1.977 enabled the TBS to correct book content inconsistencies in time for the revised editions of the same books. By then, the follow-up Loan 2030 with a large textbook component provided a much-needed stimulus to closer coordination among the CDCs, BEE and TBS (PCR, paras. 3.13-3.14). 13. Despite the above difficulties, the project succeeded in producing 92 book titles, 17 more than the original objective of 75, and distributed about 32 million textbooks compared with the appraisal estimate of 27 million.4/ While this was impressive, the more significant achievement was the institution building in textbook development, symbolized by the estab- lishment of the IMC (PPAM, para. 11). By 1981 the TBS had learned that the textbook development cycle required a minimum of three years. It had evolved some basic criteria for textbook content, readability, book length, legibi- lity and illustrations. Work responsibilities were carefully delineated for specialists such as writers, editors, graphic artists, production experts, and so on. The quality of textbooks progressively improved from the produc- tion of a single-color elementary science book with simple line drawings to the production of a complex high school teacher's guide featuring two-color cover and text, reproduced in facsimile and integrated with instructional material and photographs (PCR, para. 3.18). 14. The distribution network was the final link in the institution building process. The Philippine archipelago of several tlousand islands stretching from north to south over 1,500 kilometers in the :outh China Sea presented a great challenge to the TBS to develop a distribution system that would deliver textbooks from the central warehouse in Manila to a remote elementary school on an island a thousand kilometers away. That the TBS succeeded, by December 1981, in moving 32 million books over land and water was a great achievement, but the system was far from perfect. Inaccurate school enrollment figures or the early release of stocks led to over-supply of books to some schools and insufficient supply to others. The earliest books issued in 1977 lasted only two years instead of the intended three years because they were printed on newsprint. Delays in printing often pre- vented books from reaching schools on time (PCR, paras. 3.38-3.39). A serious hindrance to efficient book distribution was the failure to transmit money on time to the 13 regional and 127 division education offices to finance local textbook deliveries. The TBS found it difficult to maintain an adequate supply of books at the local level even with stocks in the local warehouses. The implementation of the new Elementary Learning Continuum (para. 12) meant that the original schedule for reprinting current textbooks had to be postponed, thus reducing book supply. By 1981 it became increas- ingly difficult to maintain the 2:1 student-book ratio achieved earlier. Nevertheless, the foundation had been laid for a distribution system which is being improved under Loan 2030. 4/ Between 1982 and 1984, with funding under Loan 2030-PH, TBS produced about 29.3 million textbooks and distributed 28 million. Thus, by December 1984, TBS produced a total of 62.4 million and distributed about 60 million textbooks, or about 61% of the original objective of distributing 98 million books to schools by 1984. -6- Teacher Training 15. To promote the effective use of the new textbooks, inservice train- ing of five to ten days was carried out for elementary and high school teachers to prepare them to use the new textbooks and other teaching materi- als and to familiarize them with the appropriate teaching methods related to the curriculum. They were also shown how to evaluate student achievement (PCR, para. 3.43). The inservice training, carried out during the school vacation, first trained in Manila about 60 trainers, who then trained, at the 1 iegional offices, about 1,200 trainers who in turn trained about 100,000 teachers. Between 1977 and 1981 nine training programs were conducted. A total of about 318,000 elementary and secondary high school teachers and 50,000 supervisors, principals and other administrators took part in the training. Thus about 368,000 participants, 47% more than the appraisal plan of 250,000 teachers, received training in the use of the new textbooks. Physical Facilities 16. The project provided buildings, furniture and equipment for the TBS central warehouse-office complex, the Philippines Normal College Language Study Center (PNC-LSC), the Philippine Practical Arts Center (PPAC) of the Philippine Technological University, an RSDC in Palawan and 54 warehouses in the 12 regions. For textbook testing and teacher training, 15 RSDCs (includ- ing the new one in Palawan) were given selected equipment and training materials. Tools for practical arts were given to an additional 21 RSDCs which subsequently were not used for book testing or teacher training because there was no policy guideline on the teaching of practical arts such as agri- culture, fisheries, industry, business, and home economics (PCR, paras. 3.05 and 3.60). When the warehouses were completed with furniture and equipment, they were handed over to the regional education offices for administration and maintenance. Similar?y, when the office buildings for the PNC-LSC, PPAC and the Palawan RSDC were completed, furnished and equipped, they were handed over to the beneficiary institutions. Also for textbook testing, 34 DRSs were given equipment and instructional materials. 17. All the above facilities were completed on time except the con- struction of the TBS warehouse-office complex at the Diliman campus, Univer- sity of the Philippines. Construction was delayed by c*anges in site loca- tion and the consequent need to redesign the complex. The delay caused the Government budget allocation for this construction to lapse, requiring a reapplication for budget funds. By late 1980 only 40% of the work was completed because the scope of work had been enlarged, but 80% of the funds had been used up. To save the complqx, EDPITAF in 1981 turned over all construction supervision responsibilities to the TBS. To ease the Govern- ment's cash burden, the Bank agreed in July 1982 to allow disbursement for civil works to increase from 30% to 85%. This helped to cover the cost of the central warehouse and Government funds were used to cr.mplete the TBS office buildings in mid-1983 (PCR, para. 3.62). Compared with the appraisal - 7 - plan to provide about 21,900 square meters, the project constructed about 29,300 square meters, a 34% increase due to the addition of the TBS office complex to the central warehouse, whose enlarged construction from about 4,600 square maters to about 18,000 square meters was partly offset by reduc- ing the number of provincial warehouses constructed from the planned 107 (13,700 square meters) to the actual 54 (5,800 square meters). The total actual cost of construction, including professional fees, was US$3.92 mil- lion, 16% over the appraisal estimate. Furniture and equipment cost US$4.24, 2% higher than the appraisal estimate (PCR, paras. 4.09-4.10). Management Information System and Preinvestment Study 18. An important part of the Government's institution building was the establishment of the Management Information System (MIS) in the Office of Planning Services (OPS). Reliable data on students and teachers in each school are essential to educational planning, including the production and distribution of instructional materials. The project's modest investment of about US$200,000 had a far greater pay off than was probably expected at appraisal. EDPITAF made effective use of one consultant who worked for two years (1977-78) to train over 850 MECS central and regional staff in the operation of the MIS (PCR, para. 3.66). Where previously various agencies were duplicating efforts in producing educational statistics, the OPS has now assumed responsibility for data on elementary and secondary schools. A preinvestment study was carried out, as planned, to assess the use of com- munication technology to improve the quality of basic education and to pro- vide educational support for rural development. The study's conclusions led eventually to a mass media pilot project for which the Bank provided a tech- nical assistance loan of US$2.0 million (PCR, para. 3.65). The Bank's Role 19. The Bank's most important contribution was in project design. The focus on institution building and the Bank's repeated emphasis during imple- mentation on making the TBS a permanent institution were fully justified. In appraising the project the Bank had the benefit of the experience of an on-going textbook project in Indonesia (Credit 387-IND). Even though when the Philippines project was appraised the Indonesia project was only two years into implementation, the main lessons about institution building was already emerging. Ste ted in 1973 the Indonesia project produced 280 million textbooks (compared with the appraisal objective of 138 million) but left no viable institutional capability for continuing the production and distribu- tion of textbooks when the project was completed in 1982 (OED Report No. 4562, June 17, 1983). In the Philippines, the Bank was determined from the outset to ensure that the project design would be based on the objective of developing the Government's institutional capability in producing, distribut- ing and evaluating instructional materials for its school system. Thus, the Bank's condition for loan effectiveness (para. 6) facilitated project imple- mentation which was ably carried out by EDPITAF and TBS. In retrospect, the four-year implementation period was too ambitious in view of the need for a minimum of three years to go through the cycle of producing a textbook. - 8 - Supervision missions were adequate and constructive, especially when they included a textbook development specialist who was able to provide on-the- spot technical assistance in resolving technical problems. Continuity in Bank support was assured through Loan 2030-PH, a sector loan of US$100 mil- lion to improve equity and quality in elementary education, including the provision of textbooks as the second phase of the Government's textbook deve- lopment program (PPAM, para. 4; PCR, para. 3.67). Textbooks and Student Achievement 20. The TBS Evaluation Section took the unique opportunity provided by the project to evaluate the effect of the availability of textbooks on students' learning achievement. The evaluation findings, based on test scores of project textbook users and non-project textbook users at different grades and in different subject areas, showed that positive learning gains from the use of project textbooks tended to recur in the separate studies conducted from 1976 to 1981.5/ As the PCR provides an excellent summary of the evaluation of the textbook use (PCR, paras. 3.49-3.57), the audit would merely like to highlight the following main findings: (a) the availability of learning materials such as textbooks tends to equalize the learning achievement of rich and poor children (PCR, para. 3.54); (b) there was no clear evidence that a 1:1 student-book ratio had better learning outcomes than 2:1 ratio (PCR, para. 3.55); (c) the degree of learning achievement was difficult to determine in a multilingual (Pilipino and English) situation when a comparison is made of grade one student scores on science tests (PCR, para. 3.56); and (d) a special 1979 UNESCO study reported that the project cost less than 1% of the total annual per student cost with a 14% improvement in learning achievement (PCR, para. 3.57). Data generated under this project also assisted Bank-funded research to examine the influence of textbooks on educational quality. One finding of overriding significance from this research was that the availability of reading materials was one of the most consistent determinants of better learning. Thus the finding supported the thesis that investments in textbooks were one of the most effective means of improving student achievement.6/ 5/ Textbook Board Secretariat, "The Effects of the National Textbook Project on Pupil Achievement in Communication Arts, Science and Mathematics, and Social Studies - Summary," April 14, 1982. 6/ Operations Evaluation Department, "Evaluation of a Completed Research Project: 'Textbook Availability and Educational Quality' RPO 671-60," March 19, 1985. For a more detailed discussion of the Bank-financed research project, see Stephen P. Heyneman, Dean T. Jamison, and Xenia Montenegro, Textbooks in the Philippines: Evaluation of the Pedagogical Impact of a Nationwide Investment, World Bank Report Series No. 335. - 9 - III. MAIN ISSUES Institutional Development 21. A major issue, at project completion, was the presidential dis- approval of the recommendation, based on two studies in 1978 and 1981, to transform the TBS into a government corporation (PCR, paras. 5.01-5.02). Since then presidential approval was secured and the IMC has been established as a public corporation (para. 7); the remaining problems concern the financial autonomy and staff conditions of service. The IMC's operational expenses depend entirely on the budget provided by the Government. Decision- making on procurement of equipment, paper and printing services valued at P2.0 million or more required presidential approval. The time-consuming, multi-tiered approval process often caused delays.7/ The question is whether financial autonomy is essential to the continued institutional deve- lopment of the IMC, and if so what steps should be taken to nurture it. One suggestion is that the IMC should become an income-generating corporation from which the Government would buy books on contract. This, however, would raise other issues such as pricing textbooks to give the IMC a profit margin sufficient for its maintenance and development, the level of textbook subsidy for public schools compared with prices charged to private schools, and the market share of private publishers (PCR, para. 5.05). 22. An integral part of institution building is the development of pro- fessional expertise among staff with clear prospects for career growth and tenure. The delay in the late 1970s in establishing the TBS as a permanent institution had led to the loss of some important professional staff and delayed implementation of its staff training (fellowship) program. High staff turnover, reflecting low staff morale, would seriously affect the efficiency of the IMC, which must offer a compensation and benefit plan comparable to what the private sector gives to attract and keep competent staff (PCR, para. 5.03). The Private Sector 23. The project had spin-off activities which benefited the private sector. It stimulated industries related to graphic arts production; type- setting, ink and paper manufacturing; printing presses; transport and commer- cial forwarders, and so on. Despite these benefits, the question was asked whether the Government should have the major share of the textbook market. To be sure, private publishers were licensed to print and sell commercial 7/ In one case the Government, after months of indecision, overturned a contract award made by TBS to a foreign firm for printing services. The Government's decision not to proceed with the contract award made by the TBS for the lowest evaluated bidder was declared a misprocurement by the Bank which consequently cancelled US$270,000 of the loan, the foreign exchange cost of the aborted contract. - 10 - editions of project textbooks. Some privately developed textbooks were even included in the project, but the private book publishers were apparently convinced that their livelihood was threatened as long as the Government was in the textbook publishing business (PCR, para. 5.05). In this connection, some basic questions which might be asked include the following: Should printing be contracted to the private sector? What is the role of ICB in providing printing services? Should the private sector compete with alternative textbook series? Is there a case for a cost-recovery policy and, if so, what should it be? These and other questions point to the need for clarifying the private sector share in the textbook industry. On the other hand, under the Government's new curriculum policy the practice of soliciting textbook manuscripts from the private sector as a way of giving it a more active role raises the question of the future of the CDCs whose development the project helped to finance. The CDCs, despite their designation, were involved in textbook manuscript preparation rather than curriculum development as such. After 1981, however, the CDCs were used infrequently. Having developed a team of textbook writers, researchers and other specialists, the CDCs should be assigned more responsibility, perhaps in cooperation with the private sector, in producing a constant supply of textbook manuscripts, either new or revised, to maintain the flow of instruc- tional materials to the schools (PCR, paras. 5.04 and 6.02). Costs 24. The total actual project cost, according to the PCR, was US$45.09 million, about 13% less than the appraisal estimate of US$51.6 million, but the equivalent in pesos is not stated. Annex 8 attempts to summarize esti- mated and actual project cost by year and type of expenditure, but there are gaps in the data presented. For example, furniture and equipment, technical assistance, and paper brokerage and handling have no cost figures in pesos, whereas all the other types of expenditure have both US dollar and peso costs. Table 4.01 of the PCR, however, states that the total actual local cost was US$20.36 million equivalent, but as the PCR does not explain what method was used to arrive at this figure, it is impossible to compare the appraisal estimated total project cost of P 386.98 million with the actual cost in pesos. As the purpose of Annex 8 is to present a chronological sequence of project costs, the average annual currency exchange rate used to convert one currency into another should have been stated. To compute total actual cost in local currency or US dollars equivalent, the Bank's preferred method is to apply the exchange rate prevailing in each year against expendi- tures in that year (OMS 3.58, Annex July 1978, para. 19). 25. The audit's concern is twofold: it seeks to know first, whether the actual costs, in local currency and US dollars equivalent, are accurate; and second, whether and to -hat extent the actual costs were affected by cur- rency exchange rates and price inflation. This basic information on actual costs is the reference point for an overall evaluation of the adequacy of the Bank's financial support and the sufficiency of the Government's financial provision for the project. Such evaluation would include, among other things, reasons for cost underruns and overruns. For example, additional analysis of the costs associated with textbook development, production and - 11 - distribution would help in future projects. Specifically, it would be useful to know why the cost of manuscript writing, field testing, manuscript revi- sion, and preparation for printing was 69% less than estimated; why the dis- tribution of 32 million instead 27 million textbooks cost 137% more than expected; and why paper cost 150% more than estimated (PCR, paras. 4.03- 4.06). Information of this nature is an important building block in the institutional devElopment of the Government's capability in textbook develop- ment. 26. The project disbursement profile shows that US$19.9 million or about 80% of the loan had been disbursed between FY76 and FY81, during which the currency exchange rate remained the same as that at appraisal, that is P7.5 to one US dollar. Between FY82 and FY84, however, when the balance of US$4.8 million of the loan was disbursed, the exchange rate dropped from P8.2 to P14.0. Against this background of fluctuating exchange rates, the project's success in achieving an overall cost underrun merits more detailed information on costs in local currency than has been provided by the PCR. At any rate, on the basis of data given by the PCR, the total actua project cost, after adjusting an apparent error it adding the total cost of textbook testing and feedback (PCR, Annex 8), appears to be US$45.96 million rather than US$45.1 million. The cost underrun should therefore be 11% rather than 13% (PPAM, para. 9; PCR, para. viii). While these corrections are reflected in the Basic Data Sheet, they should not be taken as final. The total actual project cost in local currency and US dollars equivalent should be verified by the Government. 一／夕一 州，&s尸分＇治訢 13 C0M0WS FROM TRE BORROWER ATTACævffi i 'RI!'F- ! "rrP! MFT XAS05t38 JGX094 WORI.D BANK FOR OITO MAISS! FVýi* J,) n.ý WORID -MiNK, REt PRfIJFCT PFRFfIk.IA.'l'-c Al,1f1 PROJEGl' %[.:)A,4 tý_24-PH» W,ý A, Rl. "F "MFIý!ENTIA.: REPORT. P I F A ?F ? F 7 M' F n Rlm. F D T H t^': V! R' r-. F: A I I tý A c c jt:T!f ',IJ TUF HOWFVFR A PFOUFST FOR -tl,!F r,FTAfi Y! Ylý" CHAN6F l) i" THAiNi:" DRt V)CTRO h< CPUNEZ DEPIJTY i*-iýý,r?CTFRf MVCC EXECUTIVF rTRCCT-IR, FDPITAF 45446 FDPITAF FM. 45446 FDPITAF PM,<ý =05230804 ALT RYD FROMOZ2.m, ーノダー メぢノ了f汐令2ぶ、斤 - 15 - PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH) PROJECT COMPLETION REPORT July 200 1984 Projects Department East Asia and Pacific Regional Office 一／C~ 才辭、才矽、夕名，斤 - 17 - PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T -PH) PROJECT COMPLETION REPORT Highlights i. The US$25.0 million World Bank loan financed a project designed to improve and expand the supply and development of textbooks in the Philippines. ii. The objective of the project was to develop the institutional capacity for the continuous development and supply of relevant textbook material in the Philippines. This required the establishment or strengthening of local institutions to develop and distribute textbooks* and the production and distribution of about 27 million textbooks as the first phase of an eight- year program to introduce about 98 million new textbooks into public primary and secondary schools by 1984. I 'ii. The project provided technical assistance, equipment and facilities to: (a) expand the functions of the Textbook Board for management of textbook development at all stages; (b) establish or extend five curriculum development centers to develop curricula, write, test and revise textbooks in five primary and five sec4ndary school subjects; (c) establish 14 staff development centers and 34 development high schools as a network for testing books and training teachers in the use of the new textbooks; and (d) establish a distribution system consisting of national, provincial and sub-provincial warehouses for transporting books from printers to schools. iv. In additiong the project financed: (a) the establishment of an edu- cational managpment information system to provide educational managers with a regular flow of up-to-date information; and (b) a pre-investment study of use of educational mass media. Vo The project succeeded in meeting the twofold objective of textbook production and institutionalization. The institutional network for all text- book-related tasks was built and a central agency was organized to manage the nationwide operation. 92 elementary and high school titles were developed ana 32 million textbooks were distributed, exceeding the appraisal target of 75 titles and 27 million textbooks. The textbook-student ratio came down to 1:2 from 1:10 before the project. Impact studies showed that test score - 18 - achievement of project pupils was higher than nonproject pupils for 14 out of 16 titles evaluated. vi. However, some of the risks identified at appraisal persisted. Delays in the delivery of textbooks to the schools were frequent for various reasons - poor coordination between curriculum development and book produc- tion, complex disbursement and contract approval procedures and others. The system lacked the ability to sustain an adequate book supply in the field, and book gaps began to be felt again in 1981, as the ratio between books and school children widened. Also, the status of the Textbook Board Secretariat (TBS) became uncertain upon completion of the project. The process of legalizing the TBS into a permanent body is still ongoing and is being addressed in the Elementary Education Project (Loan 2030-PH). Project Costs vii. The project, originally scheduled for the period July 1976 to December 1980 was extended twice. The loan closing date was extended from June 30, 1981 to June 30, 1982, then to June 30, 1983. The reason was delays in the construction of the TBS office-warehouse complex, which was beset with problems. It was finally completed in mid-1983. viii. Despite the extensions, the actual overall project cost was about 13% less than appraisal. By category of expenditure, however, the project's cost performance varied sometimes widely from appraisal. In textbook development, for example, despite the increase in the number of book titles produced from appraisal target, the cost was 69% less than the appraisal estimate. Paper procurement had the biggest cost overrun of 150% over project appraisal. Lessons Learned for Future Project Implementation ix. The experience of this project proved useful to the design of a subsequent textbook component of the Elementary Education Project. The new project took note of the following lessons and acted on them: (a) For an institutional network to be effective in coordinating the various activities of curriculum and book development, production and distribution, the institutions involved must be given the legal and financial support to carry out their functions. The Elementiry Education Project supported the transformation of the TBS into a government corporation equipped with the appropriate legal and financial bases. (b) Simplification of disbursement and procurement procedures would pre- vent delays. The Elementary Education Project revised the disburse- ment system by releasing directly to local authorities the budget for distribution expenses. A new paper procurement system that would prevent the depletion of paper stock and reduce red tape would be introduced. (c) Participation of nrivate publishers should be encouraged and their role clarified. The Elementary Education Project provided for the representation of private publishers in the Instructional Materials Council and the Ministry of Education was requested to complete the plans for purchasing instructional materials from private publishers. - 19 - I. COMPLETION REPORT PREPARED BY THE GOVERNMENT A. INTRODUCTION AND BACKGROUND 1/ The Setting 1.01 The Philippines is composed of the three island groups of Luzon, Visayas and Mindanao, together having a total land area of 297,200 sq. km. Population reached 42.1 mil on in 1975 and rose to 48.1 million in 1981 at an annual growth rate of 2.7%.- Administratively, the country is divided into 13 regions. 1.02 The Philippine economy maintained an average annual growth of real GNP of 6.3 frm 1970 to 1980. Per capita GNP rose at an annual rate of 3.5% during the Same period. Unemployment was at levels of 4-5% between 1976 and 1980 whie uaderemployment dropped from 25.5% to 16.1% of total employed between 1976 and 1978. Adjustments in minimum wages were made periodica y, with the maximum effective minimum wage set at P 31 daily in March 1981.- 1.03 There are eight dominant languages spoken by 85% of the popula- tion. One of these, Tagalog, serves as the core language for the legislated national langutge, Pilipino. The Government maintains a bilingual policy in education, using Pilipino and English as the official media of instruction. The Educational System 1.04 Under the current system, the ten years of basic education include six years for elementary schooling and four years for secondary schooling. The country has a high adult literacy rate estimated at 90%. On the average, the government schools account fo.r 95% of elementary enrolment; 50% of secondary enrollment, and 15% of tertiary enrollment, although a gradual increase in government share in secondary and tertiary enrollments was noted from the mid-70s to 1980. 1.05 The gross participation rate in formal education is high and still increasing. A comparison between 1974 and 1980 reveals the following: at 1/ The project closing date was originally scheduled for June 30, 1981. It was later extended twice first to June 30, 1982 and then to June 30, 1983, because of delays in the construction of the TBS office building and warehouse. Except for civil works, the project as originally conceived at appraisal was completed by June 30, 1981. This report focuses on activities that took place from July 1976 to June 1981. 2/ Census data reported in the NEDA 5-Year Plan for 1983-87. 3/ Sources: NEDA 5-Year Plan for 1983-87 and "Social Development in the Philippines: 1970-80." - 20 - elementary level, the school enrollment ratio rose from 103.9% to 110.7%; at seco4lary level, from 47.6% to 59.6%; and at tertiary level, from 48.6% to 57%.- Project Formulation 1.06 In 1969, a Presidential Commission to Survey Philippine Education (PCSPE) was organized to diagnose the problems of the educational system and to recommend policies, programs, and projects for reform. In 1970, the PCSPE recommended, among others, upgrading the quality of basic education in the country. The serious lack of textbooks and other teaching aids was seen as the principal reason for poor quality education. 1.07 In 1971, a UNESCO mission visited the Philippines to identify educa- tion projects suitable for World Bank/IDA financing. The subsequent UNESCO report formed the basis for the establishment of the Educational Develoment Projects Implementing Task Force (EDPITAF) under the Minister of Education and Culture on September 29, 1972 by Presidential Decree No. 6.A. 1.08 The high proportion of school-going population underscored the need to improve the quality of instruction. School curricula were outdated and textbook development was neglected. On the average, the :extbook-to-pupil ratio was 1:10. With respect to learning achievement, the 1975 Survey of Outcomes of Elementary Education (SOUTELE) revealed that there was no signifi- cant incremental learning between grade 5 and grade 6 pupils. This was attri- buted to the following: inadequacy of instruments to measure skills, presence of a learning plateau at certain ages, curriculum redundancy, and failure of the system to achieve specific grade-level objectives. The survey further revealed that learning achievement was lowest in the three Rs. The results pointed to the need to upgrade the quality of learning in basic education. 1.09 With the creation of EDPITAF, a Third Education Project was con- ceived, to address directly the issue of educational quality. Consisting largely of textbook production and distribution and the establishment of a unified management for educational publishing by the Government, the project would focus on the problems pertaining to the inadequacy of schoolini/inputs, particularly traditional and nontraditional instructional materials, The 4/ NEDA, "Social Development in the Philippines: 1979-80." 5/ Realizing the need for a more comprehensive approach in developing the elementary level, the Government in 1982 launched the Program for Decen- tralized Educational Development (PRODED). A phased development of the secondary and tertiary levels is also being planned by the Government. - 21 - project proposal was appraised in 1975.61 Negotiations were held in January 1976. The project was effective July 29, 1976, and was expected to be completed December 31, 1980. The closing date was set for June 30, 1981. Project Objectives 1.10 The overall purpose of the project was to develop the institutional capacity for the continuous development and supply of relevant textbook mate- rial in the Philippines. This would involve: (a) the establishment and strengthening of local institutions to develop and distribute textbooks; and (b) the production and distribution of 27 million textbooks as the first phase of a Textbook Project to provide the public primary and secondary schools with 98 million new textbooks by 1984. 1.11 In addition, the project was to provide for: (a) the establishment of an educational management information system to provide educational managers with a regular flow of up-to-date information; and (b) the financing of a preinvestment study on the use of educational mass media, particularly satellite communication. B. PROJECT DESIGN 2.01 The content of the Third Education Project is summarized in Table 2.01. 6/ A UNESCO mission visited the Philippines in December 1974 to identify components of the Third Education Project. A number of areas for assistance were identified, including textbook production, agricultural education and fishery training. Following discussions, the Bank decided to narrow the project to three components: (a) quality improvement, including textbook development; (b) agricultural and rural development; and (c) experiments and studies. A UNESCO preparation mission visite- the Philippines in March 1975 and prepared the project on this basis. The appraisal mission of June 1975 further focussed the project on text- book development and production, as this was considered vital to improve- ment of quality and equality to inputs between rural and urban schools. The appraisal mission scaled down the Government's proposal for an eight- year project to produce 150 million textbooks to a more realistic number of about 30 million textbooks over four years. It also concentrated on issues of institution building and staff training, and recommended the formation of a permanent, autonomous institution to carry out the development, production and distribution of textbooks on behalf of the Government. - 22 - Table 2.01: TRIRD EDUCATION PROJECT CONTENT Objectives Project inputs Expected outputs/outcomes Textbook Preparation and Distribu- tion (proposed outlay3 US$35.3 =4lion) A. Establish and support 5 curri- 1. Construction of 2 buildingst 75 titles (39 textbooks, 36 acto&- culum development centers to Language Centers vocational panying tescher's guides) devel- develop curricula, write, test study Canter. od In elementary and high school and revise textbooks. science, matho scial studies, 2. Provision of furniture and Filipino and English. equipment for S Curriculum Development Centers. 3. Financing of contracts to develop curricula and book manuscripts. 4. Provision of techsal. oasfb- tab ds. B. Establish 14 isgional Staff 1 Financing of testing of proto- 250,000 teachers and administra- Development Centers, desigate type textbooks In 40 represen- tore trained on effective use of 34 Development Hi~gh Schools as tative schools. t.books; system established and network for testing books and reports completed on evaluation of training 250,000 teachers on 2. Financing teacher stipends at teacher training and Impact of new use of books teacher training workshops books on learning achievement. 3. Provision of equipment for 14 pSCo and 34 DSa. C. Expand functions of Te-.tbook 1. *organization of the Textbook 27 st1llion textbooks printed under Board for management of text- Board Secretariat wit quali- Textbook Board management. book development. fied staff. 2st Formation of BeTDECCO advisory council. 3at Construction of building for Textbook Board. 4.* Provision of furniture and equipment. 5. Financing paper procurement and printing coats. 6. Provision of technical assis- taete. D. Establish distribution system 1. Construction, furnishing, 27 million textbooks distributed of one national and 107 pro- equipping of national textbook nationally at 1 g2 bookdpupil vincial and .ubproviPcial warehouse and 107 provincial ratio. warehouses for transporting and eubprovincial warehouses. books from printers to schools. 2. Financing textbook distribu- tion through provincial ware- houses to schools. Educational maneen Information system (proposed outlay: USt0.2 million) Introduce management information 1. Provision of furniture and Centralized computer processing system at ministry Office of Plan- equipment. established. ning Services to improve policy making, administration and plan- 2. Provision of technical assio- ning. ta e in design of Information system. Mass Madia Preinvestment. Study (proposed outlay: US$0.4 million) Select most effective strategy for Provision of technical assistance. fteinvestment report completed. Introducing educational technol- Ogy. - 23 - Textbook Production and Distribution 2.02 Management of Textbook Development. The overall purpose of the project was to develop the institutional capacity for the continuous develop- ment and supply of relevant textbooks for the Philippines' basic education system. To accomplish this, the functions, staffing and facilities of the Textbook Board would be expanded and a Textbook Board Secretariat (TBS) created to enable the board to manage all textbook development activities, from initial planning to book manufacturing and distribution to schools. This would be in addition to its regular function of approving manuscripts intended for production into textbooks for elementary and high schools. A Basic Education Textbooks Development Coordinating Council (BETDECCO), including educators, national education officials, and a repreacatative of the publishing industry in the private sector, would be formed as an advisory body to the Textbook Board. 2.03 The textbook development cycle would be three years: the first year for planning and writing, the second for testing and revision, and the third for printing and distribution. The Textbook Board would contract five Curri- culum Development Centers (CDCs) for curriculum development, manuscript writing in their subject areas of specialization, field testing of prototype books in about 40 representative schools, text revision, and the training of teachers in the use of the new books. A network of 14 Regional Staff Develop- ment Centers (RSDCs) and 34 Development High Schools (DHSs) would also be linked together and would be used by the project for manuscript testing and teacher training. 2.04 Management of Textbook Manufacturing and Distribution. The Textbook Board would purchase watermarked paper in bulk, contract the printing and binding of books, monitor the contracts, and manage all aspects of book dis- tribution from printers to schools. Printing would generally be done on roll-fed presses for large printing runs, and sheet-fed presses for small printing runs. During the first two years of the project textbooks would be printed in one color and would have an expected life of three years. Binding would generally be done by saddle-wire stitching. 2.05 A national textbook distribution system would be established and would consist of a central textbook warehouse in Manila and 107 provincial and subprovincial warehouses. These warehouses would be used to distribute about 18 million textbooks yearly. Printers would deliver books to the central warehouse, where they would be packaged by the school of destination to minimize later repackaging. Through transporters and forwarding agents the Textbook Board would transport books from the central warehouse by lond, sea, or air to provincial and subprovincial warehouses. Public school pripcipals would be provided funds at local education offices for transporting Looks to their schools, generally by public transport. Distribution would be equit- able, pro-rated on the basis of one book per subject for each two pupils at every grade level in the public school. 2.06 Textbook Utilization and Evaluation. School principals would be responsible for the care and storage of books at the school level. They would arrange through classroom teachers for the loan of textbooks to students free - 24 - of charge. One student would receive a book on loan in a subject, another student a book in a different subject. During classroom hours the book would be shared between two students, facilitated by the typical classroom furniture which seats more than one student per desk. After school hours the books could be exchanged among students as needed. 2.07 Evaluation of the textbook component would include data on the number of books printed and delivered to schools and an analysis of the results of the program of testing prototypes. It would also include a program to measure the incremental change in learning achievement which results from provision of the textbooks. A program of testing student achievement would be initiated in a sample of schools across the country. Evaluation of the teacher training component of the project would include data on the number of workshop participants and an analysis of the effectiveness of the training. MECS Management Information System 2.08 To strengthen the planning and management at the education ministry, a management information system (MIS) would be introduced at the Office of Planning Services (OPS). The system would provide for centralized computer processing of statistics on pupils, teachers, educational finances, school facilities, instructional equipment, and textbooks - data necessary to improve policy-making administration, and planning. Introduction of the system would require: (a) setting priorities regarding data needs; (b) designing and testing forns and procedures for data collection and processing; (c) scheduling and phasing implementation; (d) computer programming; and (e) staff training. Mass Media Preinvestment Study 2.09 To provide a sound basis for decision-making and to select the most effective strategy for introducing educational technology through the exten- sive use of satellite communication and other mass media for formal and non- formal education, a preinvestment study would be conducted jointly by national and international specialists led by a ministry interagency planning committee. Technical Assistance 2.10 The Third Education Project included 24 staff-years of fellowships and 27 staff-years of local and foreign specialist services. Approximately 56 educators and administrators would receive training overseas in curriculum work, manuscript preparation, book production, etc. The major part of this training would be practical, on-the-job apprenticeship. Specialist services would be provided in fields related to the project. Project Cost 2.11 The total cost of the Third Education Project was estimated at P 387 million or US$51.6 million and would be financed as follows: (a) the proposed Bank loan US$25.0 million (48% of total project cost) to meet 100% of the foreign exchange cost; and (b) the government counterpart funds of - 25 - US$26.6 million (52% of total project cost). Each textbook produced under the project would cost an average of US$0.79 including cost of development testing and distribution. C. PROJECT IMPLEMENTATION 3.01 Overall responsibility for implementing the Third Education Project was exercised by EDPITAF, as provided for in Presidential Decree No. 6.A. In accordance with agreements reached during negotiations, the Philippine Govern- ment through EDPITAF strengthened the administrative capability of the educa- tion ministry's Textbook Board by providing it with a management structure for the development and provision of textbooks. This was embodied in the educa- tion minister's issuance on February 12, 1976 of the appropriate rules and regulations to implement the Textbook Law Presidential Decree No. 687 (Annex 1), the legal basis for the organization of the TBS. 3.02 The delineation of specific responsibilities for project implementa- tion as set forth in the appraisal report was followed. EDPITAF was responsi- ble for physical facilities, technical assistance, finance, and monitoring and reporting; it also carried out the implementation of the management informa- tion and-media preinvestment subprojects. TBS was responsible for the full range of textbook-related activities, from manuscript development to paper procurement, printing and distribution, and teacher training and evaluation. Institutional Network for Textbook Development 3.03 Curriculum Development Centers (CDCs). Part of the institutional development necessary to ensure the continuous production and supply of rele- vant instructional materials was the designation of five existing agencies as CDCs. The CDCs were responsible for the planning, writing, testing, and revision of textbooks in the five principal subject areas of science, mathe- matics, Pilipino, English, and social studies as well as in other subject areas. These centers collaborated with the TBS in the development of materials through the close interaction between CDC writers and TBS editors. 3.04 The CDCs were headed by a director and staffed with full-time writers who were given honoraria from annual financial grants from TBS. The institutions designated as CDCs were: (a) University of the Philippines Science Education Center (UPSEC) for science and math; (b) Philippine Normal College Language Study Center (PNC-LSC) for Filipino and English communication arts; (c) Social Studies Center of the education ministry for social studies; (d) Technological University of the Philippines for work education and practical arts; and (e) Central Luzon State University for agro-fishery arts. 3.05 During the period July 1, 1976, to December 31, 1981, only UPSEC, - 26 - PNC-LSC, and the ministry's Social Studies Center produced manuscripts for textbooks and teacher material which were printed and distributed. The Tech- nological University of the Philippines, provided with funds for the development of a secondary level curricululm for practical arts, produced various curriculum guides for teachers' use. However, with the absence of policy direction in this subject area, the work of this CDC was severely hampered. For example, it was not clear how the five streams of the subject area (agro-fisheries, industry, business and distributive arts, work education and homemaking arts) would be taught to all schools; the issue of the effec- tive use of Pilipino for technical terms which had to be coined as none as yet existed in that language was not sufficiently addressed; there was no time- table officially adopted for the production of new learning materials not financed by the Third Education Project. By 1981, the CDC had distributed to the field pilot copies of five curriculum guides, 25 teachers guides, and about 120 students modules on various practical arts topics. As no production had been planned for them under the Third Education Project, these materials were subsequently submitted to the Bureau of Secondary Education for further refinement, possibly under a secondary-level sector improvement program envisioned for the latter 1980s. 3.06 The Central Luzon State University was to have collaborated with the Technological University of the Philippines on curriculum and material devel- opment in practical arts, specifically on agro-fisheries. After initial development activities in 1977-78, this CDC was effectively abolished in 1979 when EDPITAF was streamlining its operations and its work in progress was transferred to the Technological University of the Philippines. 3.07 Textbook Board Secretariat (TBS). This management unit for all textbook-related activities of the project started operation on July 1, 1976 with the appointment of a director and key staff. During the initial organi- zational years (1976-78), TBS was under the direct administrative supervision of EDPITAF. On July 13, 1979, and in accordance with plans agreed upon with the Eank, Presidential Letters of Instruction No. 873 transferred TBS to the Textbook Board providing the latter with administrative and fitancial authority and capability to manage all textbook-related operations. By December 1981, TBS had a staff of 130 of which 67 were professionals in editorial, production, manufacturing, distribution, training and evaluation, administration, and comptroller divisions. The organization chart of TBS is shown in Figure 3.01. 3.08 Other Institutions. At the regional Level, 14 Regional Staff Development Centers (RSDCs) were identified, mostly from among local colleges and universities or education offices, and RSDC directors and staff were designated and paid from project funds. At the provincial (equivalent to school division) level, 34 Development High Schools (DHSs) were identified. As these institutions were to arsist the project in managing textbook tryout and in conducting teacher orientation on the use of the new books, they were provided with the necessary equipment (typewriters slide projectors, dupli- cating machines) and, for RSDCs, vehicles. This nk .work concept, intended to promote cooperation in the field, resulted in fragmentation, as the Ministry's regional offices asserted their legal and administrative responsibilities and effectively took control of the project in the field. - 27 - Organizaton Chart of the Textbook Board Secætadat Tex~tbook Boad Exscutiva D~istor Depuly Director Staffi Summary: 0~ ManaTm hncal 67 &~p~o 63 Techncal 2 Total 130 uppotd 0 Aciministratlve Office Comptrowlrs Office PLonnel Rec CshBudget Motor ol ©ccountlng Technical 4 TechIcal 9 &~90' ._ Suppt Total 9- Total 33 Editorlal Production Manufbctuing Distribution Tralning & DMdon DMslon DMson DMn Evaluaon DMsion Eing Copy Editing Paper Procurement sta~ Trolning FEld T«sng Ait & Photo Printing SeMcs Wrehou eearch DummIng Qualfty Control TefcEvaluation Technical 17 Technical 7 Technlcal 6 Technica 14 Technical 10 Total 1 7 Supot 24 7 Total 8 Total 13 Total Total 17 World Bank-26088 - 28 - 3.09 Using project funds, the RSDCs managed the summer institute for teachers on the use of textbooks only once, in April-May 1978. After that year, the regional education authorities took over all project-related activities and funds; although regional training was still for the most part held at RSDC sites, the Ministry's regional offices assumed effecive manage- ment of teacher orientation in succeeding years. This shift rationalized project administration in that the Ministry's own regional offices rather than RSDCs which were for the most part private educational institutions were recognized as the local implementing authority for the project, in accordance with overall governmental efforcs to strengthen regional-level management. Manuscript Development 3.10 During the period July 1, 1976 to December 31, 1981, the project developed 92 elementary and high school titles (51 textbooks, 41 teacher materials) in the five subject areas (Table 3.01). Of these, two were revised editions of books issued in 1977 and eight were contributed by three private- sector publishers who participated in the project in 1980. 3.11 As planned, manuscript writing by assigned groups in project- supported CDCs ensured the development of materials that were well-researched and within the learning capacity of the target grade level. For this, CDCs conducted small-scale testing of individual lessons or chapters, usually in nearby schools and in teachers college experimental classes where writers observed student performance and interviewed teachers. However, even at the onset of the project, manuscript development proved to be difficult owing to the following: (a) uncoordinated preparation of scope-and-sequence content plans among CDC writing groups each in charge of a particular gradc within a subject area, among CDCs in charge of specific subject areas, and between the CDCs on the one hand and the Curriculum Development Division of the Bureau of Elementary Education (BEE) on the other; (b) complicated approval system within zhe CDCs; and (c) editorial inexperience at TBS. 3.12 As planned, the UPSEC science and math series, which were in print under contract with a textbook publisher in the private sector, were revised to suit the reading level of the public schools and the time available for the use of the books. This enabled the project to go into the production of these materials immediately at the outset of the project in 1976 instead of going through the three-year writing-testing and revision-printing development cycle, as was done for the social studies series of SSC and the Pilipino and English series of PNC-LSC. However, this also meant that books of several grades had to be revised at about the same time, straining the schedules of the newly formed research and writing teams. Because of this, there were occasional difficulties in determining the scope-and-sequence coverage for those books: learning topics were repeated for some grades and altogether skipped in other grades rather than treated in an order that would gradually review, reinforce, and expand children's understanding of basic concepts or mastery of certain skills. 4 TabLe 3.01: T=~O0ES AD TEa KIUlIe DgEP U SV=JECT AD «RADE. 1976-M 1976 1977 1978 1979 1980 1981 Total El.cte:y Sooke Science 1 Seence 4 Siece 5 6 Te.sbode Saee I Tebet' Manual Science 2 Te~bør'@ wan~a Science 3 Teacher Manuel Setc. 4 Teac*er *ta~ul iaece 5 T*embr'0 £di- 4 Tachar s~ee 2 Science 3 tioa ~ q. Science 6 2 ta-ø~ ' editios 12 b~0k tatb I Sath 2 math 4 Ymte 4 Teacber'* Nanel Nath 5 6 tmatbodko ~6 1 TeIcher's Stenet Stth 2 Teche' manmal matk 5 Teacher's Manua 6 Tenchae'. ikth 3 watt 6 tale ieth 3 Tenhr'* Ib~a "ath 6 Teeber'# 1tnael Pilipine 1, lmok 1 Pilipiac 2 Pulpta 3. langange Pilipi o 3 Teetebr'a r,6 nel riiipit~ i (v. td.) 9 testbookt Tilipio 1. Sook 2 Pilipin 2 Te~cher' "on~al P1liplao 3. ~Luding Pilipino 4. etdiog P11piao 2 ( d. U.) a 4 Te~e'* Ti1~pino i T.e-bo'stuael P111pieo 4, language il ipiao 4 Te~cher'a ?bn~a Stnn 15 Soaku Social Studie. 1 Soetal Studie 4 Sotal Stidts 5 8 ?Ostboeka Social Studie 1 Techer'* ?b~naa Social Studies 5 Teeber's Naanal t Me,' Sociel Stodies 2 Social Stade 5 (Priv. p~bl.) a 9~mnlt Scelal Stadie* 2 Ta *' t*nel Social Stadiem 5 Texcher's Stnuel Social Studien 3 (Pilv. pubt.) 16tb- 8e Soieta Studie 3 Techer', "tnmal Social Studine 6 Social Studie. 4 T~eh'6 HaStnel Soeial Studie 6 Te~ca'* manmel Social Studie. 4 (Priv. pu.)I Social Studie. 6 2e,hec' (ftv. pe~.> /b Elish ~ Engøib 2 E tlib I Toocar,'s nt~el Eg1eb 4, So. k 1 6 ibooke Egitab 2 Techr e al Engisb 4. ~,ok 2 3 Te'ber' ESleb , Sook 1 a 1 ~ EgiLb 3. ok 2 Englisb I Tethr's Manet 9 Sooke Sabh School haoka Science x Science III Scie~. K9 4 Tatøbode Science I Techer's Stnel Sene III Teeor'n Editio Sience X9 Te~cher' Udi- 2 Moncher'* Seience II tietn~ Sciene II Th'* Manmal 2 T ..'.se Nation. ath XX Sath IV Math I ibth I t~ra'8 uitien 4 Tmtbøekø ~eth II o ebar' dition ItVh ITecher'* Editio ib IX ath IX Toebrm Mitten 4 lødehør' Qdittene Pi1ipin L Pilipio il 3 tbo~ Pilipio I Teachar'* Pilipino 11 Teacher' Seseel 3 1~,che'6 Stanet Piitpino XX (rilv. paml.) /b Se-t Pilipao u o Te&cher' W (Mil. publ.) ~ 6 hoke Social Stadie. 1 2 Tøttbedk* Social Stadie. II Eliab I Ei*b I Teacher's Udi- 3 Ettbodko Engish I (Priv. mht.> I tie. 1 1~ ,h*.'. E~leb I Techer' ~.l (ftv. EngliX 1 ta pobt.> ~t Eiab II Toh' Udi- 2 t~ecer'* tion mittond B ooke 5 attbøke 4 Tetb~ok. Z ttbooke 8 Te1tbooke 16 Ttbook to Tetbooke 3 Ta'he's taønale, 4 2eeber'. hnse 7 Teebør'.senele 3 Techer's anale 14 Teacher' ~ 4nale I techer'. mition I Techer's gditten I T~hr'* Edition 7 Teache' littioe $ Sooa 8 hoke 16 1ook12 Sooka 1 hooke Bok17 a 92 0k l naud edition of 1976 aud 1977 boaks incerporated sa of t* he requiremente otb* eV elem ~ety School carricelas. Ka rep~se to reqeeta trom priVSte scior ebli.ee, the" b~ooke bY private autb~re ere printad aend åetributd by the prøj*et. - 30 - 3.13 Because the curriculum body, BETDECCO, (including regiona$units, REBETDECCOs), never became an operational influence on the project,- the issue of lateral linkaging, coordinating the presentation of concepts and skills and giving them about equivalent weight and treatment across subject areas, was never satisfactorily addressed. Further, the project's CDCs had minimal collaboration with the Ministry's curriculum unit at the BEE. Shortly after the project was launched, this unit issued the Elementary Learning Continuum (ELC) which catalogued the subject matter for instruction in public elementary school and prescribed the learning expectancies per learning unit in each grade and subject area. With little or no reference to the new books being developed by the project, BEE instructed teachers in the field that instruction (and teachers' periodic performance rating) would be based on the ELC, creating some confusion and leading teachers to resequence the content of the new textbooks and use other materials because they were afraid that the books neither covered the ELC completely nor presented lessons in the sequence prescribed by the ELC. 3.14 Project staff attempted to reconcile the differences during the summer teacher training sessions in 1977, 1978, and 1979. It was not until 1980, when it was time to review the content of the first books issued in 1977, that many of the content inconsistencies were corrected for the revised editions of the same books. By then, preliminary preparations had also begun for a possible elementary education sector project (later, PRODED), and coordinative meetings between the textbook project and BEE were initiated. During these meetings which became more frequent in 1981 the need for an improved elementary curriculum was identified and coordinated work among CDCs, TBS, and BEE was established. 3.15 Also according to plans made in 1976, the CDCs prepared pilot editions of textbooks for field testing in 40 schools for one full academic year. However, the CDC concentration on determining achievement gains of children using the experimental textbooks resulted in complicated instrument development for pre-post testing and complex data analysis of achievement tests. Consequently, very little useful data was gathered on such formative aspects of the tryout as appropriateness of reading level, adequacy of content for one full year, teachers' difficulties encountered in the use of the books and their suggestions for improving the material. With the 40 classrooms randomly selected, visits to tryout sites proved very difficult, and feedback data for the studies could not be gathered and analyzed in time to help authors and editors with manuscript revision. 3.16 TBS effectively took control of the textbook tryout beginning 1979. With the help of an editorial expert engaged by the project under its technical assistance program, a modified scheme was developed and presented to the Bank for review. The number of tryout classes was reduced from 40 to a minimum Qf 12 for manageability, but representativeness was assured, especial- 7/ As a network-type concept (para. 3.06), it was thought that an advisory body in the field could be operationalized. However, without formal, legal bases and with little promotion among officials concerned, the concept failed; BETDECCO met only once. - 31 - ly as regards language variations and rural-urban differences. Further, the objectives of the full year field testing were reviewed and reformulated, with emphasis on gathering feedback directly from teachers and students. Deriva- tive studies, as on impact of the pilot materials on learning achievement, were discontinued; the role of the textbook editor during tryout was enhanced; teachers in the field, previously reluctant to speak candidly for fear of offending the visiting authors, provided the needed advice to editors whom they considered to be more objective. Feedback forms were simplified: although editors devised interview questionnaires, greater use was made of teachers' marginal notes made on an extra textbook copy given to teachers at the beginning of the tryout year. In addition to editors' more frequent visits to the tryout classes, the teachers were given addressed and stamped envelopes to encourage them to maintain correspondence with the editors between such site visits. In all, the new tryout procedure was satisfactory to TBS, for it resulted in 3enerating information directly about specific lessons and pages and put manuscrip: revision back on schedule. The CDCs thereafter concentrated on research and writing, collaboration with TBS on manuscript revision and teacher training. 3.17 At the manuscript revision stage, during start-up operations of the early years, difficulties were encountered, especially in effecting editorial improvements on textbook manuscripts submitted behind schedule and after they had gone through sometimes complicated approval procedure at the CDCs. It was only beginning in 1980 that the idea of involving the textbook editor from the very beginning of manuscript preparation, (that is, at the planning stage, even prior to writing and field-testing) was generally accepted. From then on, editors and authors found time to effect necessary alterations in the text on a lesson-by-lesson or chapter-by-chapter basis. Other difficulties included ensuring that permission in writing was secured for all copyrighted material that would be used in the textbooks (a responsibility of the CDCs) and, on the part of TBS, keeping the typesetting, art and page preparation activities on schedule. The persistent problems of staff turnover or long absences when staff were away on foreign training, typesetting overload, and unpredictable deliveries by individual illustrators contracted by the project from free-lance sources in the private sector were the most frequent causes of delay. 3.18 In spite of the difficulties, however, manuscript development was kept generally on schedule, and 92 book titles, 17 more than the 75 targeted, were developed during the project period. In addition, the learning gains by project institutions involved in textbook development were considerable. By 1981, the various CDCs had identifiable working groups counting specialists among them for research and writing. The TBS had evolved by then the basic publication criteria governing textbook content, readability, book length appropriate for the school year, even legibility (including size of type, phrase grouping, word spacing) and type of illustrative material. The text- book development cycle had been tested, and it had been proven that the irre- ducible time required for a textbook was three years. Responsibilities had been carefully delinea.ed among authors, editors, copy editors, graphic artists, and other production specialists. The project progressively produced books, each better than that preceding it: the first book produced by the project was a straightforward, single-color elementary science book with text - 32 - and simple line drawings; the last was a complex high school teacher's edi- tion, two-color text and full-color cover, featuring the textbook pages repro- duced in facsimile and integrated with instructive material and photographs for the teacher's convenience. Paper, Printing and Binding 3.19 The project procured printing paper, contracted printing and binding services, and monitored these contracts up to delivery of books from printers to the project central warehouse. 3.20 Paper Procurement. In all, 16 paper mills from the Philippines and elsewhere were prequalified for supplying "EDPITAF TEXT," a grade of paper with some wood pulp (general specifications: 66 grams per square meter basis weight, 90% opacity, 72%-76% brightness), adequate to meet the three- to six- year physical life of the textbook. 3.21 The amount (in metric tons) of paper procured was as follows: 1976 1977 1978 1979 1980 1981 Total Paper 874 3,304 3,413 6,022 7,814 2,502 23,902 Cover Stock 106 349 265 264 604 1,588 3,176 Total 953 3,653 3,678 6,286 8t418 4,090 27,078 3.22 In 1977-78, the purchase of paper was part of the required bid of prospective contractors, that is, under that integrated offer, the printer would make his own paper purchase. The paper was consigned to EDPITAF, and the project assisted the printer by securing tax exemption for the purchase. This procedure proved difficult to implement and did not make clear who was responsible for the paper which arrived in bulk from foreign mills (the Philippines does not usually produce EDPITAF TEXT). 3.23 The procurement procedure was modified in 1979 when the project separated paper purchase by international competitive bidding from the purchase of printing services, thereafter done by local competitive bidding which also allowed foreign printers to participate. Under the new procedure, the project purchased paper from prequalified mills through local merchants and assumed full responsibility over ordering, insurance, freight, brokerage and handling, warehousing, and releases to printing companies awarded contracts to print textbooks for the project. This involved buying paper in enough quantities for one full year's production and replenishing the stock periodically. The procedure was considered advantageous because it would make paper available as soon as a printing award was made (saving on time lost waiting for paper to arrive) and would protect the project from unpredictable price changes in the international market. - 33 - 3.24 TBS was totally unprepared in staff, equipment, experience, and expertise for the complex management of thousands of tons of paper shipped in from foreign ports for distribution to various printers. Further, delays in editorial and art activities and also in processing printing contracts, from bidding through evaluation, award, and Bank and presidential approvals resulted in the project's having to house up to 10,000 metric tons of paper in two rented warehouses one of which had a floor area of 5,000 square meters. Printers often complained of delays in paper releases, damaged and unusable paper released to them, shortages, or issuance of wrong stocks. The question of accountability frequently arose, as printers used more stock than esti- mated, claiming spoilage, and as they returned unused stock and spoilage. The usable stock returned was sorted out for conversion (from rolls to sheets), but even this required close supervision by TBS staff who had little or no training in paper handling and whose assignments were warehouse-keepers and printing inspectors. By lat 1981, the project still has stock enough for the next year's book production.- 3.25 Procurement of Printing Services. The project prequalified 64 Philippine and 35 foreign printing companies for participation in the bid- ding for the manufacture and delivery of books. The prequalification, done on a continuous basis, included the printer's submission of required documents and an ocular inspection of facilities to verify their plant capacity. The maximum capacity rating was put at 50% of evaluated capacity. 3.26 The project's printing output (in number of copies) was as follows: 8/ In early 1982, owing to the many problems about paper, including over- stocking, management, remaindering, and warehouse, TBS suspended further procurement pending review and improvement of paper procurement activi- ties. Current plans include bulk purchasing and staggered deliveries of limited quantities to avert oversupply and providing markings on the paper for security. - 34 - 1977 1978 1979 1980 1981 Total Elementary Textbooks 6,110,400 4,004,795 5,939,365 5,762,000 6,048,000 27,864,560 Teacher material 330,000 162,292 - 883,499 551,000 1,926,692 Total 6,440,400 4,167,087 5,939,365 6,645,400 6,599,000 29,791,252 High School Textbooks - - 656,000 1,209,200 1,262,000 3,127,200 Teacher material - 15,000 713,590 1,259,910 1,306,300 3,294,800 Total 6,440,400 4,182,087 6,652,955 7,905,310 7,905,300 33,086,052 3.27 The total of 33,086,052 copies were for 78 individual book titles bidded out in 37 groups, or bid packages. The breakdown of copies printed by book title and year is presented in Table 3.02. 3.28 In the procurement of printing services, the most serious imple- mentation problems were: (a) delays in contract processing; (b) delays in making the master copy of the book to be printed, called "repro" (for repro- duction) materials, available to the contracted printers; and (c) delays in contract completion. 3.29 At the start of each year, TBS prepared its annual work plan for achieving the project targets for development, production, and distribution. The plan included the year's bidding schedule for the contracting of printing services. This schedule proved difficult to keep and had to be revised two or three times owing to either slippages in bid schedules and contract prepara- tion or delays in completing the repro in time for contract awards. The former was largely due to the complicated approval system for contracting, following governmental regulations, and also to the Bank requirements that it review each proposed award. A typical award needed to be approved by the Textbook Board, the education minister, and the Office of.the President, and then by the World Bank. The latter, repro preparation, although planned to proceed in parallel with the bid cycle, frequently was not completed even after all procurement approvals had been secured. This was because the process involved many stages and complex, collaborative work among writers at the CDCs for revision of texts after tryout, editorial improvements at TBS which then had to be approved again by the writers, and technical production (typesetting, illustration, page make-up, and filming) which had to be prose- cuted meticulously and completely by hand. By 1981, no satisfactory alter- natives had been found to simplify either the approval system or expedite "repro" preparation, although procedures were continually reviewed and moni- toring was intensified. Table 3.02: TETOOKS AND TEACHER MATERIALS PRINTED, BY SUBJECT AND GRADE, 1977-81 Textbooks Teacher's Manual@/Editions Subject and grade 1977 1978 1979 1980 1981 1977 1978 1979 1980 1981 Total Elementary Books science 1 1,279,200 - - - - 60,00. - - - - 1,339,200 Mathematics 1 1,279,200 - - - - 60,000 - - - - 1,339,200 Pilipino 1 Sk. 1 1,279,200 - - - - 60,000 - - - - 1,339,200 Pilpino 1 Bk. 2 231,800 1,047,400 - - - - - - - - 1,279,200 Mathematics 2 991,150 50,000 - - - - 1,041,150 Pilipino 2 1,049,850 - - - - 50,000 - - - - 1,099,850 ScIence 2 - 933,600 - - - 50,000 - - - - 983,600 Science 3 - 975,000 - - - - 45,000 - - - 1,020,000 Mathematics 3 - 835,320 - - - - 45,000 - - - 880,320 Social Studies 3 - 213,475 668,325 - - - 62,292 - - - 944,092 Social Studies 1 - - 1,191,825 - - - - - 114,700 - 1,306,525 English 1 - - 1,322,400 - - - - - 116,000 - 1,438,400 Social Studies 2 - - 1,062,200 - - - - - 102,600 - 1,164,800 Science 4 - - 896,700 - - - - - 53,100 - 949,800 Mathematics 4 - - 797,915 98,085 - - 10,000 - 41,000 - 947,000 Rnglish 2 - - - 1,083,000 - - - - 103,000 - 1,186,000 Pilipino 3 Language - - - 995,000 - - - - 99,000 - 1,094,000 filipino 3 Reading - - - 995,000 - - - - - - 995,000 Pilipino 4 Language - - - 916,000 - - - - 94,000 - 1,010,000 Pilipino 4 Reading - - - 817,915 98,085 - - - - * 916,000 Social Studies 4 - - - 857,000 - - - 51,000 - 908,000 English 3 Sk. 1 - - - - 1,014,000 - - - 99,000 - 1,113,000 English 3 Bk. 2 - - - - 1,014,000 - - - - - 1,014,000 Science 5 - - - - 832,000 - - - - 100,000 932,000 Mathematics 5 - - - - 832,000 - 10,000 90,000 932,000 Social Studies 5 - - - - 624,000 - - - - 75,000 699,000 Social Studies 5 (Priv. Publ.) - - - - 208,000 - - - - 25,000 233,000 Stieice 6 - - - - 165,915 - - - - 92,000 257,915 Mathematics 6 - - - - 720,000 - - - - 92,000 812,000 Social Studies 6 - - - - 540,000 - - - - 69,000 609,000 Nigh School Books Science I - - 270,000 - - - 15,000 - - - 285,000 Science II - - 208,000 - - - - 12,900 - - 220,900 Math III - - 178,000 - - - - 30,200 - - 208,200 Math I - - - 305,000 - - - - - 15,000 320,000 Pilipino I - - - 293,000 - - - 14.490 2,220 - 309,710 Math II - - - 243,000 - - - - 12,000 - 255,000 Pilipino II - - - 60,700 - - - - 4,000 - 64,700 (Priv. Publ.) Pilipino II - - - 182,300 - - - - 12,000 - 194,300 English II - - - 125,200 148,800 - - - - - 274,000 Social Studies I - - - - 348,000 - - - - - 348,000 English I - - - - 226,250 - - - 2,490 12,510 241,250 English I - - - - 81,750 - - - - 5,300 87,050 (Priv. Publ.) Social Studies II - - - - 274,000 - - - - 9,270 283,270 Science III - - - - 24,000 - - - 4,190 - 28,190 Math IV - - - - 159,200 - - - 13,810 - 173,010 - 36 - 3.30 Contract completion delays were partly the result of implementation difficulties encountered prior to printing: in contract approval and repro preparation (para. 3.29) and management of paper stocks (para. 3.24). They were also partly due to the lack of adequate quality control measures on the part of the printers. Throughout the implementation period, plant quality control which in developed countries is a built-in feature among printing establishments was virtually exercised by TBS. It assigned inspectors to plants where project contracts were ongoing for supervising the work on the production floor. During times that the inspector was at another plant, some printers waited until the inspectors returned to approve a print run or, worse, went ahead with an apparently unacceptable print run or binding or packaging. The latter accounted for spoilages of paper and prompted printers to demand more paper than was originally provided for in their contracts. Although the project had sought as early as 1978 to solve this problem by sponsoring a training seminar on printing quality, engaging two American experts from the Graphic Arts Technical Foundation under the technical assistance program, the effects of the training were short-lived, as printers earlier prequalified left the project and new printers joined, and the project had since been unable to organize follow-up training. 3.31 The expected onset of the Elementary Education Sector Project (PRODED) also had a "braking effect" on textbook production which had been gaining momentum since 1977. The Textbook Project's Ten-Year Availability Schedule which had been carefully worked out early on and which contained intricate timetables for manuscript development, paper procurement, printing, distribution, reprinting, and revision by subject, grade, and individual book title had to be reviewed in 1980 and completely reworked. This was because the planned introduction of the New Elementary School Curriculum for 1983-88 meant that: (a) some revised editions of project textbooks already in production would precede the curriculum and might not be in conformity with it; (b) other books scheduled for reissue would need to be deferred in order to keep materials and curriculum development in phase; and (c) still others would have to be reprinted to ensure supply in the field until the new curriculum took effect. 3.32 In spite of those problems, however, the project exceeded by 18% the appraisal target of 27 million books by having about 32 million books in print by December 31, 1981. Textbook Distribution 3.33 A distribution unit at TBS was established to ensure timely and adequate distribution of books to the 40,000 public elementary and high schools throughout the country. This unit managed the distribution network consisting of a central textbook warehouse in Manila and 152 provincial warehouses at the regional, subregional, divisional, and subdivisional (or district) levels of the education ministry's administrative system. Of this number, some 54 warehouses were constructed under the project. 3.34 Delivery lists for textbooks and teacher materials were prepared on the basis of the latest enrollment reports and data on number of teachers. Aside from the field requirement of one book for every two pupils per subject, - 37 - reserve stocks of up to 34% of the field requirement were provided to replace books lost or worn out and to meet additional requirements brought on by increases in enrollment. These reserve stocks were to be kept at the local warehouset and issued to schools as requested. 3.35 From 1976 to 1981, 12 commercial freight forwarders were prequalified on the basis of their financial capability, equipment, and experience. Through public bidding, as many as five at a time among the forwarders were given annual contracts for distribution. The forwarders picked up book shipments from the central textbook warehouse in Manila and delivered them to the 152 provincial warehouses. The forwarders were paid in Manila upon their presentation of proof of delivery, usually their receipts signed by authorized officials at the local level. 3.36 Under memoranda of agreement executed yearly with TBS, regional educational offices were provided funds to cover expenses for the distribution of books from the local warehouses up to individual schools of their region and for the hiring of local labor and warehouse security and maintenance. As of December 31, 1981, some US$3 million (P 33.95 million) had been given to the 13 educational regions. 3.37 As of December 31, 1981, about 32 million books had been delivered to the field, as follows (breakdown by subject and grade in Table 3.03): 3.38 Beginning 1978, TBS monitoring staff regularly visited about 400 schools yearly to determine the quantity of books received. They checked the local warehouses, advised field officials on distribution problem-solving and reordering from Manila, gathered their data, and received complaints. At the schools, they checked the condition of the books and the manner of utilization and maintenance. The yearly visits showed that while some schools had exceed- ed the 1:2 book-to-pupil ratio owing to inaccurate statistics or early release of reserve stocks, a number of other schools still had not received their books. It was also discovered that the earliest books issued in 1977, in science and mathematics for grade 1 and Pilipino for grades 1 and 2, lasted only two years instead of the intended three years. These books had been pri..ted on newsprint, before EDPITAF TEXT became the prescribed paper. To keep the supply at recommended levels, reprinting was proposed in 1980, but this was implemented only in 1981. The book supply situation as of December 31, 1981 is shown in Table 3.04. 3.39 Although the distribution network established by thp project operated effectively in that books reached the schools, the primary objective of having the books reach the schools in time for the opening of classes in June each year was attained only in the case of a few textbook titles. As noted above (para. 3.30), printing delays made it impossible for all titles to be delivered on time. In addition, faulty and outdated enrollment statistics provided by the Ministry's Office of Planning Services resulted in inaccurate provision of books and flawed enrollment projections. Because of the coun- try's inefficient postal and other communications services, reports of short deliveries and misdirected shipments reached the project late. After the first two years of operation, the TBS distribution unit began to prepare its own statistical studies based on these late reports and on actual enrollment data its monitors gathered from the field during their visits (para. 3.38). - 38 - Table 3.03: TBXT0O0 AND TACMR MATUUIALS DISTRIBUTRD BY GRADB, 1977-81 1977 1978 1979 1980 1981 Total Books Titles looke Titles Books Titles Books Titles looks Titles Books Titles EleMentary Books Grade 1 Textbooks 3,442,634 4 880,903 4 1,144,884 5 2,186,079 6 102,927 4 7,757,429 6 Teacher materials 144,584 3 - - 3,105 2 258,618 5 4,393 2 410,700 5 Subtotal 3,587,218 7 880.905 4 1,147,989 2,444.697 11 107.320 6 8,168,129 it Grade 2 Textbooke 959,039 2 1,515,653 3 1,202,279 4 775,431 4 864,032 2 5,316,434 5 Teacher materials 127,854 3 8,083 1 - - 214,199 4 6,462 3 356,598 5 Subtotal 1,086,893 5 1,523.736 4 1.202.219 4 989,630 8 870,494 5 5,673.032 10 Grade 3 Te;tbooks - - 1,742.407 3 1.583,583 5 1,356,112 5 2,043.372 4 6,725,474 7 Teacher materials - - 122,823 3 1,364 2 92,559 4 136,955 4 353,701 5 Subtotal - - 1865230 6 1,584,947 7 1,448,671 9 2,180.327 8 7,079,175 12 Grade 4 Textbooks - - - - 1,828,485 3 2,761,280 5 401 1 4,590,166 5 Teacher materials - - - - 49,077 3 188,434 4 6,499 3 244,010 4 Subtotal -1877.562 6 2949,714 9 6.900 4 4,834.176 9 Grade 5 Textbooks - - - - - 508,373 1 1,827.352 4 2,335,725 4 Teacher materials - - - - - - - 270,162 4 270,162 4 Subtotal - - - - - - 508373 1 2097514 2605887 Grade 6 Textbooks - - - - - - - - 818,447 3 818,447 3 Teacher materials - - - - - - - 223,556 3 223,556 3 Subtotal - - - - - - - 1042003 6 1,042,003 6 High School Books First Year Textbooks - - - - 247,129 1 463,032 3 460,511 4 1,170,672 5 Teacher materials - - 859 1 6,895 1 21,619 2 36,663 5 66,036 5 Subtotal - - 859 1 254024 2 484.651 5 497.174 9 1,236,708 10 Second Tear Textbooks - - - - 189,140 1 150,372 3 494,554 4 834,066 5 Teacher materials - - 1,192 1 7,050 1 1,995 1 22,601 4 32,838 4 Subtotal - - 1 9152367 4 517,155 8 866,904 9 Third Year Textbooks - - - - 171,460 1 17,918 2 12,622 2 202,000 2 Teacher materials - - - * 6,411 1 9,119 1 18,933 2 34,463 2 Subtotal 177,071 2 27.037 3 31,555 4 236.463 4 Fourth Year Textbooks - - * - - 132,695 1 26,505 1 159,200 1 Teacher materials - - - -- - 13,003 1 668 1 13,671 1 Subtotal z -145*68 2 2 2 1 2 Total 4,674,111 12 4,271.922 16 6,440.862 30 9.150.838 52 7.377,615 61 31,915,348 81 - 39 - Table 3.04: TEXTBOOK:PUPIL RATIO AS OF DECEMBER 31, 1981 Year dis- Copies Copies in Book:pupil Grade and subject tributed distributed service /a Enrollment ratio Elementary Textbooks URade I Science 1977 1,279,200 667,751 1,708,529 0.78:2 Mathematics 1977 1,279,200 667,751 1,708,529 0.78:2 Pilipino Book 1 1977 1,279,200 667,751 1,708,529 0.78:2 Pilipino Book 2 1977 1,279,200 667,751 1,708,529 0.78:2 Social Studies 1979 1,191,825 861,093 1,708,529 1.00:2 English 1979 1,322,400 955,434 1,708,529 1.12:2 Grade 2 bcience 1978 933,600 73,347 1,469,662 0.78:2 Mathematics 1977 991,150 517,386 1,469,662 0.70:2 Pilipino 1977 1,049,850 548,028 1,469,662 0.75:2 Social Studies 1979 1,062,200 767,440 1,469,662 1.04:2 English 1980 1,083,000 920,550 1,469,662 1.25:2 Grade 3 Science 1978 975,000 598,772 1,373,315 0.07:2 Mathematics 1978 835,320 512,991 1,373,315 0.75:2 Pilipino Language 1979 995,000 718,888 1,373,315 1.05:2 Pilipino Reading 1979 995,000 718,888 1,373,315 1.05:2 Social Studies 1978 881,000 541,535 1,373,315 0.79:2 English Book 1 1981 1,014,000 1,014,000 1,373,315 1.48:2 English Book 2 1981 1,014,000 1,014,000 1,373,315 1.48:2 Grade 4 9eIence 1979 896,700 647,866 1,262,874 1.03:2 Mathematics 1979 896,700 647,866 1,262,874 1.03:2 Pilipino Language 1980 916,000 778,600 1,262,874 1.23:2 Pilipino Reading 1980 916,000 778,600 1,262,874 1.23:2 Social Studies 1979 857,000 619,183 1,262,874 0.98:2 Grade 5 cience 1980 832,000 707,200 1,120,211 1.26:2 Mathematics 1981 671,730 617,730 1,120,211 1.10:2 Social Studies /b 1981 832,000 832,000 1,120,211 1.48:2 Grade 6 Sience 1981 165,915 165,915 996,573 0.33:2 Mathematics 1981 570,000 570,000 996,573 1.14:2 Social Studies /b 1981 82,532 82,532 996,573 0.16:2 High School Textbooks First Year Science 1979 270,000 195,075 487,646 0.80:2 Mathematics 1980 169,825 144,351 487,646 0.59:2 Pilipino 1980 286,487 243,514 487,646 0.98:2 English /b 1981 308,000 308,000 487,646 1.26:2 Second Year cience 1978 208,000 127,738 429,706 0.59:2 Mathematics 1980 120,332 102,282 429,706 0.48:2 Pilipino /b 1980 243,000 206,550 429,706 0.96:2 English 1981 274,000 274,000 429,706 1.27:2 Third Year Science 1980 24,000 20,400 372,714 0.11:2 Mathematics 1979 178,000 128,805 372,714 0.69:2 Fourth Year Mathematics 1980 159,200 135,320 324,488 0.83:2 /a Number of textbooks still available by December 31, 1981. This is derived by deducting from the number of copies distributed 15% per year of use which is the estimated annual rate of textbook retirement owing to normal wear and tear. /b Two textbook titles were distributed: one developed by the project's CDC, the other by a private-sector publisher admitted for participation in the project. - 40 - 3.40 The other obstacle to efficient implementation of textbook distribu- tion was the practice of effecting the financial assistance for local distri- bution through channels, that is, from the project through 13 regional offices and 127 division offices. Checks issued by the project or cash disbursement authorizations were frequently held up in the many offices they were sent to, and subsequent preparation involved in dividing the money for the divisions and thereafter into school districts took time. During the process, some checks went stale or the disbursement authority document lapsed, the Philip- pine Government's quarterly financial control over such authorities being strictly enforced. Rewriting checks or requesting revalidation of expired disbursement authorizations had to be done in Manila and required a complex procedure of reapplication and justification with the national budget office. Local authorities had to advance the money, larg) y at the urging of project monitors, and this facilitated the flow of funds.' 3.41 The most serious problem in distribution was the institutional question. The project provided the field with new warehouses, equipped all local points of delivery, and paid for their operating cost on the under- standing among regional authorities in 1976-77 that such assistance especially as regards staff salaries for the warehouses would be provided on a declining basis; the regional offices would increasingly include these costs in their regular operations and request funds from the national government for the purpose. The requests for such institutionalization of delivery service at the local level were in fact made. As of late 1981, however, the Ministry's central office has not approved them, and to date some 413 field personnel, mostly warehouse clerks, laborers, radio operators, and security guards continue to function as employees hired on a temporary basis. TBS has made representations with the Minister, but action is still pending. 3.42 In terms of physical output, the appraisal target of 27 million books was exceeded t6,18%, as actual delivery performance was about 32 million books (Table 3.03) .- However, maintaining an acceptable level of book supply in the field proved more difficult even with the provision of reserve stocks at the local warehouses (para. 3.31). The target book-to-pupil ratio of 1:2 was achieved for all books only during the year that a new book was issued (Table 3.04), but the first books delivered deteriorated more quickly than foreseen. Further, plans initiated in 1980 for curriculum reform by 1983 at elementary level (a feature of the proposed sector project) prompted a review of the medium- and long-term textbook reprinting plans. As the planned new curriculum would be introduced gradually, that is, in one grade levPl per year, the supportive textbooks and other instructional materials, designed to 9/ Beginning 1982, the audit commission allowed treasury warrants, good as cash, to be issued to the field. This move greatly facilitated the movement of money to finance local delivery of textbooks. 10/ The extension of the project implementation period contributed to the increase in book production and distribution. As of December 31, 1980, the end of the original four-year implementation period, some 24.5 mil- lion books had been delivered, or 90% of the original target of 27 mil- lion books. - 41 - last from three to six years needed to be produced to phase with the curricu- lum or else become obsolescent long before their physical life was through. The review had the effect of deferring previously planned reprinting, reducing book supply in the field so that by 1981 gaps became evident again between numbers of children and books especially in the middle elementary grades. Teacher Training 3.43 The general objective of the teaLner orientation component of the project was to promote the effective use of the new textbooks among 250,000 elementary and high school teachers immediately before the introduction of the textbooks nationwide. Five- to ten-day training programs were developed with the following specific objectives: (a) familiarize the teacher with the new textbooks and the appropriate teaching strategies in relation with -he curri- culum, including the learning continuum for the elementary grades: (b) demon- strate the use of the textbook and teacher material in class; (c) plan for covering the subject matter completely during the school year; (d) acquire additional subject matter background and identify supplementary and enrichment materials; and (e) prepare sample tests for evaluating student achievement. 3.44 The programs were designed by the TBS training staff in collabora- tion with CDC authors and the Ministry's elementary and secondary educators who also acted as trainers. The training programs were convened by ministe- rial order and managed by the Ministry's administrative offices at the nation- al and local levels using funds provided by the project under memoranda of agreement between TBS and the regional education offices. Trainers and parti- cipants were paid their transportation and living expenses. 3.45 Large numbers of teachers were reached by means of echo training: trainers at national level trained 60 trainers for the 13 regions who trained about 1,200 trainors for the 127 school divisions who in turn reached as many as 100,000 teachers from all districts and schools. The sessions were held during the months of April and May when school was not in session, sometimes concurrent with in-service summer institutes for teachers. 3.46 In nine training programs conducted between 1977 and 1981, some 317,986 elementary and high school teachers were trained. In response to requests from the field that non-teaching staff also be given training so that skills acquired by teachers in summer would be reinforced during the year through effective supervision, some 49,986 academic supervisors, school prin- cipals, and other administrators were also trained. This brought the total number of trainees to 367,836 (Table 3.05), or 47% more than the appraisal target. - 42 - Table 3.051 TEACHER ORIENTATION PROGRAMS OF THE TEXTBOOK PROJECT, 1977-81 Year Grade and Subject No. of Trainees 1977 Elementary: Grades 1 and 2 94,442 teachers science, math, Pilipino, social studies, English 1978 Elementary: Grades 1 and 2 42,466 school administrators science, math, Pilipino social studies, English 1978 Elementary: Grade 3 45,171 teachers science, math, Pilipino social studies, English 1978 High School: First and Second Year science 10,953 teachers Third Year math 1979 Elementary: Grade IV 41,768 teachers science, math, Pilipino social studies, English 1979 High School: First and Second Year science 7,384 school administrators Third Year mathematics 1980 High School: First Year Pilipino 10,030 teachers Fourth Year math 1981 Elementary: Grades 5 and 6 science, math, social studies 101,322 teachers 1981 High School: 14,300 teachers First Year English Second Year Pilipino Third Year science 317,986 teachers 49,850 school administrators Total 367,836 trainees - 43 - 3.47 Each training program was planned for implementation in phase with the textbook production and distribution schedules, in accordance with the project intent that teachers be given training before they actually used the new textbooks. Production, however, could not keep the schedules committed to trainers at the beginning of the year. Where bidding had been postponed, and printing foreseeably could not be completed in time for training, special, limited editions were rushed to press. Deliveries of these editions were themselves frequently delayed and the materials were generally unsatisfacory because they were taken from unfinished repro pages and contained typographi- cal and other errors. To solve the problem, TBS departed from the practice of setting teacher training targets based on the production schedule for the availability of new textbook titles. Beginning 1980, programs of training were planned after a review of what had been actually delivered to the field. This ensured the availability of the new materials before teachers were called for training. 3.48 Because the RSDC had ceased to function as a regional training base (para. 3.09), many other training-related problems recurred yearly which could have been solved had the local institution been put to work. Among these were inadequate funding provided the local training implementors, traceable to faulty statistics on numbers of teachers, and the lack of continuing evalua- tion of the effectiveness of the training. Preparation of postcourse training reports and liquidation of funds were delayed, and postcourse evaluation was rudimentary. Impact Evaluation 3.49 Throughout the project period, a TBS evaluation unit composed of qualified educational researchers conducted impact studies on 16 textbook titles in several grade levels of the elementary and secondary curricula. Using a multistage approach, sample units to form control and experimental groups were drawn from all regions of the country. 3.50 The effects of the new textbooks on pupil achievement were determined by comparing project and nonproject textbook users' averages and dispersion of scores on tests specifically developed for the purpose. The configuration of test data shown in Table 3.06 indicates consistently higher achievement scores among pupils who used the project textbooks. - 44 - Table 3.06: ACHIEVEMENT OF PROJECT AND NONPROJECT PUPILS No. of Project Pupils Nonproject Pupils Grade and Subject items Mean SD n Mean SD n Elementary Grade 1 Science 25 15.07 4.72 1,068 12.18 4.13 1,652 Math 25 14.34 4.71 1,068 11.87 4.43 1,652 Pilipino 25 15.26 5.36 1,068 12.72 5.08 1,652 Grade 2 Science 30 18.84 4.57 1,079 15.88 4.44 1,634 Math 30 15.43 5.04 1,070 13.88 4.26 1,634 Pilipino 30 17.83 5.92 1,075 15.23 5.25 1,634 English language /a 30 12.53 3.76 492 12.28 3.75 1,615 English reading /a 25 11.54 4.06 492 11.50 4.10 1,615 Grade 3 Social studies 25 12.76 2.36 794 10.25 3.53 1,622 Grade 4 Science 40 13.79 4.38 778 13.26 4.66 1,140 Math 40 14.11 4.53 779 13.42 4.35 1,140 Social studies 40 16.03 5.55 100 16.28 5.16 240 High School First year science 50 16.37 2.39 536 10.80 4.03 1,619 Second year science 50 25.5 3.16 481 17.80 4.72 1,602 Third year math 50 23.5 4.54 629 17.23 5.06 1,609 Fourth year math 40 18.06 5.93 152 17.07 4.69 320 !a Although there was only one textbook title for this grade, the pupils were given two tests for language and for reading. 3.51 Test score achievement showed evidence of the positive effects of the textbooks as indicated by the differences on the group averages of project and nonproject pupils. In 14 out of 16 textbook titles evaluated, statistics showed higher learning gains by project textbook users. The percentage differences in the average scores between project pupils and nonproject pupils per grade and per subject are shown in Table 3.07. - 45 - Table 3.07: PERCENT AVERAGE GAIN SCORES OF TEXTBOOK USERS Social English Grade/Year Science Math studies Pilipino Language Reading Elementary Grade 1 11 10 - 10 - - 2 11 6 - 8 1 0/b 3 - - 10 - - - 4 1 2 -1/a - - - High School First year 11 - - - - - Second year 15 - - - - - Third year - 13 - - - - Fourth year - 3 - - - - /a Children evaluated numbered only 100, too low for stable results. 7T Children used the textbook for one-half year only. 3.52 A finer analysis of the item-by-item performance of the school children on the tests showed that the magnitude of textbook effects might have been underestimated. Had the test items been weighted, with greater weights assigned to items that measured complex learning, the project pupils would score even higher because they performed generally better than the nonproject pupils in test items that measured higher levels of learning. 3.53 In spite of generally higher means obtained by users of project textbooks, their average level of performance is below the conventional mastery criterion of 75% as indicated in Table 3.08. These averages may be considered underestimates because the project pupils were tested after having used the textbooks for one year or less. More importantly, pupil performance in tests such as the ones used for textbook evaluation should not be inter- preted as mastery tests since the tests as constructed were intended not to determine mastery levels but to detect differences in learning achievement between pupils. More specifically, the test items were meant to discriminate those who learned more from those who learned less. To maximize discrimina- tion, only items that were of moderate difficulty were thus included in the final test forms. - 46 - Table 3.08: AVERAGE ACHIEVEMENT OF TEXTBOOK USERS IN PERCENT Social English Grade/Year Science Math studies Pilipino Language Reading Elementary Grade 1 60 57 - 61 - - 2 63 51 - 59 42 46 3 - - 51 - - - 4 34 35 40 - - High school First year 33 - - - - Second year 51 - - - - Third year - 47 - - - Fourth year - 45 - - - Average 3.54 With regard to the classic "learning gap" associated with income levels, an analysis of six titles revealed that the existing disparities in learning between pupils from relatively high and low income groups were minimized. The correlation index between income and achievement is higher among nonproject pupils than that of the project pupil group. This suggests that the availability of textbooks placed children of poorer families on almost equal footing with children of relatively higher socioeconomic status. 3.55 In addition to textbook use, the effects of the book-pupil distribu- tion ratio of 1:2 on academic achievement was investigated in grades 1 and 2. The assumption that the provision of more textbooks, i.e., a 1:1 book- pupil ratio, would result in higher achievement was found to be true for grade 2 pupils, but not for grade 1. The grade 2 pupils with the 1:1 book-pupil ratio scored higher than the pupils under the 1:2 ratio. On the other hand, among grade 1 pupils, those under the 1:2 ratio scored higher than those under the 1:1 book-pupil ratio. Evidently textbooks provided in greater number than the project's one book for two pupils could be disadvantageous among non- readers or beginning readers like grade 1 pupils who are also at the learning stage when they are most dependent on their teachers. It is also probable that the teachers of pupils who were given fewer books, i.e, 1:2 book-pupil ratio, maintained tighter supervision over their pupils who had to share a book to prevent disruptive pupil behavior. In the process some teaching- learning events took place. 3.56 On the matter of language, as an indirect way of testing the effects of language on pupil achievement, a comparison of scores of grade 1 pupils on science tests administered in English and its translation in the vernacular showed that the mean scores of those tested in the vernacular were consis- tently higher than those tested in English. This finding suggests that the degree of learning is difficult to determine in a multilingual situation. - 47 - 3.57 A cost-effectiveness study commissioned by UNESCO in 1979 compared the annual cost for textbooks per pupil and achievement. The study reported that the project cost less than 1% of the total annual per pupil cost and that the effects of textbook use as measured by test results showed improvement in achievement at an average of 14%. Physical Facilities 3.58 According to plan, 43 textbook warehouses were constructed to complement the Ministry's network of storerooms. Upon the request of the field midway through the project period, 11 more were built. Upon completion, the warehouses were turned over to the regional offices together with equip- ment and furniture such as typewriters, file cabinets, calculators,hand trucks, and single-side band radios. 3.59 Office buildings for two CDCs (PNC-LSC, Technological University of the Philippines Practical Arts Center as well as for the Palawan State College RSDC) were also constructed on time, equipped, and furnished under EDPITAF supervision, then turned over to the reciiient institutions upon completion (Annexes 4 and 5). 3.60 For the purpose of textbook tryout and teacher training, 15 RSDCs for academic areas were provided with vehicles, office, audio-visual, and laboratory equipment, and selected books and materials. In addition 21 RSDCs for arts and trades, agriculture, fisheries, and homemaking arts were provided with tools. (These institutions, however, did not function as planned.) 3.61 From all over the country, 34 high schools were designated DHSs and provided with audio-visual, office, and laboratory equipment, tools, and instructional and professional materials. 3.62 Construction of the TBS office-and-warehouse complex at the University of the Philippines campus in Diliman was about 50% completed by the end of 1981. The construction was beset by many problems. During project preparations in 1975, the University of the Philippines (U.P.) committed about 1.8 hectares of land for the TBS offices and central warehouse. Architectural plans were drawn in 1976, public bidding for construction was held in 1977, and the contract was approved in 1978. U.P., however, could not relocate those who were residing on the proposed site. A second site was offered, and finally a third, but the delay had been great, and construction began only on January 26, 1979. Because of the contour of the new site a replanning of the entire complex had to be done as well as massive earthworks kfilling, adobe clearing, and even the diversion of a creek) not originally included under the contract. In the meantime budget funds lapsed. The process of reapplication for revalidating the expired allotment took nine months. By late 1980 the work was only 40% completed because the scope of work had c:1arged, but 80% of the funds, kept at original levels, had been exhausted. In an effort to save the construction: (a) EDPITAF in 1981 turned over to TBS all supervision responsibilities; (b) TBS effected an amended agreement with the contractor in effect desophisticating the specifications, allowing escalation after the fact, and reducing the completion target to only the central warehouse (defer- ring work on the office buildings)! (c) the Bank allowed the increase in level - 48 - of direct paymeyi,from loan funds, from 30% to 85%, to ease the cash burden of the Government. These measures resulted in the completion of the central warehouse by late 1981; but local funds had to be sought for the completion of the office buildings. A new contract for the completion of the office buildings was made in late 1982. Construction was resumed in January 1983 and completed around the middle of the year. Technical Assistance 3.63 Some 152 staff-months of foreign expert services were expended. In the development of publication programs and in the training of TBS and CDC technical staff, five publishing consultants served in management, curriculum development, and editorial processing; two others advised on paper procurement and art and design during the initial months of operation. In addition, 34 short-term experts were engaged by the media applications preinvestment study, and one expert advised the Ministry on the MIS (Annex 6). 3.64 Key staff of TBS placed in on-the-job training in institutions over- seas numbered 19. Among them 42.5 staff-months were used for training in pub- lishing management, editorial work, and textbook design, distribution, and training and evaluation. From the various CDCs, 26 staff trained for 94 staff-months in curriculum development and textbook writing. In all, these fellowship provisions totalled 136.5 staff-months (Annex 7). In 1979, on the suggestion of EDPITAF, the cost of training 89 more fellows for 1,109 staff- months was transferred from the Second Education Projec 2 IDA Credit No. 349- PH), which was closing, to the Third Education Project., However, owing mostly to the unstable appointments at the textbook unit (paras. 5.02 and 5.03) 12 out of 45, or about 27% of those sent for technical training under the fellowship program have left the project. Mass Media Preinvestment Study 3.65 During the first year of project implementation, an EDPITAF- organized team studied areas in which communication technology could provide solutions to educational problems. In November 1976 the team presented the range of possibilities to the Office of the President in order to obtain directives for focusing the study toward specific project proposals. The team was instructed to focus on the use of communication technology for two pur- poses: (a) quality improvement in basic education, particularly through in- service teacher training; and (b) educational support for t, ral development. 11/ An amendment to the loan agreement was made on July 2, 1982 to increase Bank's share of financing for civil works. 12/ Under the follow-up Loan No. 2030-PH, technical assistance would be provided not only to the textbook unit and related governmental institutions but also to individuals and firms in the private sector associated with the Textbook Project. - 49 - The study team's proposal for a National Educational Communication System reflected this emphasis, including provision for development of an educational communications infrastructure and for a phased implementation of its recommen- dations. The study team's conclusions led to an understanding in June 1977 between EDPITAF and the World Bank that the Bank would support a mass media pilot project. By August 1977, EDPITAF proposed such a project, a Bank mission appraised the proposal in September 1977, and the Bank approved the media pilot project in December 1977 as a technical assistance loan of US$2.0 million. Management Information System (MIS) Study 3.66 EDPITAF engaged the services of a foreign consulting expert for 24 staff-months in 1977-78 to explore the feasibility of organizing an MIS for the education ministry's Office of Planning Services. The eupert trained ministry staff, produced training and other materials, and developed a major computer program. Under his direction, 71 staff completed MIS training; six others were trained in the use of the newly developed Philippine Education Management (PEM) kits for training; 24 OPS staff and 750 regional staff trained on various MIS-related topics. Among the materials developed were five monographs on planning, budgeting, and general management, three training kits and 16 training activity materials on communication and team building, and two occasional research reports on enrollment ratio variability at regional and at divisional levels. The computer program called ENRO-3 (for Philippine Enrollment Projection Program) was developed and put in operation at the National Computer Center. This program included educational statistics and alternative 10-year pupil enrollment projections. The Bank's Role 3.67 The Bank sent 13 missions to the Philippines during the project period. The visits were for the purposes of supervision, evaluation and com- pletion. The early supervision missions focussed on the problems of manu- script development and paper procurement and printing, and were made at inter- vals of six months. In the early 1980s supervision missions were less frequent partly because of internal changes within the education division and partly because textbook production under the project was almost complete. Between April 1980 and January 1982, supervision was incorporated in other missions, such as the appraisal of the Elementary Education Project which has a follow-up textbook component. Towards the closing of the project, the division stepped up supervision of the project to assist in resolving problems concerning civil works. D. PROJECT COSTS 4.01 At appraisal, the total project cost including contingencies was estimated at US$51.6 million. The completed project cost amounted to US$45.09 million, about 13% less than anticipated. A comparison of estimated costs at appraisal with actual project costs by category is shown in Table 4.01. - 50 - Table 4.01: APPRAISAL AND ACTUAL COST - THIRD EDUCATION PROJECT (US$'000) Appraisal estimate Actual cost Variance (%) Category Local Foreign Total Local Foreign Total (Actual appraisal) Textbook development 6.67 1.01 7.68 2.05 0.36 2.41 -69 Paper 0.26 6.28 6.54 - 16.35 16.35 +150 Printing 3.94 3.22 7.16 3.43 1.92 5.35 -25 Distribution 1.41 0.95 2.36 4.97 0.62 5.59 +137 Teacher training 3.00 0.33 3.33 5.05 0.89 5.94 +78 Technical assaistance 0.47 0.77 1.24 0.17 1.12 1.29 +4 Professional fees 0.13 0.03 0.16 0.11 0.8 0.19 +19 Civil works 2.25 0.97 3.22 3.07 0.66 3.73 +16 Furniture 0.22 0.12 0.34 ) } 1.51 2.73 4.24 +2 Equipment 0.38 3.44 3.82 } Total Base Cost 18.73 17.12 35.85 10.36 24.73 45.09 - Contingencies 7.64 8.11 15.75 - - - - Total Project Cost 26.37 25.23/a 51.60 20.36 24.73/a 45.09 -13 /a The loan of US$25 million was reduced to US$24.73 million after US$270,000 for print- ing was cancelled on March 16, 1983. - 51 - 4.02 The project closing date was extended twice: from June 30, 1981 to June 30, 1982, then to June 30, 1983 with a three-month grace period. In spite of the extensions, the actual overall project cost was less than at appraisal. 4.03 By category of expenditure, however, the project's cost performance varied, sometimes widely, from appraisal. In textbook development, the output of 92 book titles written, field-tested, revised, and prepared for printing (17 titles more than the planned 75 titles) exceeded the appraisal target by 23%. Yet the cost of textbook development (US$2,409,000 for all titles, or about US$26,185 per title) was 69% less than planned. 4.04 In paper procurement, the project exceeded appraisal by 150%, the biggest cost overrun among all categories. This was possibly because of the procurement mode. Considered advantageous to the project, bulk-buying of paper was made on the basis of production plans which we Inot always imple- mented according to schedule, resulting in overstocking.- 4.05 In textbook printing, the 33 million-copy output exceeded the 27 million-copy target by 22%, or six million copies. The actual cost of printing, US$5,350,000, was 25% less than estimated. 4.06 In distribution, the 31.9 million copies delivered was 4.9 million copies or 18% more than the target of 27 million copies. However, the actual distribution cost of US$5,596,000 was 137% more than the appraisal cost estimate. 4.07 In teacher training, the output of 367,836 teachers and school administrators reached by the project's various orientation programs was 117,836 trainees in excess of the 250,000 trainees provided for at appraisal, an increase of 47%. The actual cost of training (US$5,947,000 or US$16.17 per trainee) was 78% more than planned. 4.08 In technical assistance, the utilization of the available 326 staff- months for experts totalled only 152 staff-months, or 53% less. On the other hand, 124 fellows, including 89 from the Second Education Project (Credit No. 349-PH), used 1,220 staff-months of training. As the fellowship provision under the project was for 56 fellows or 284 staff-months, the excess provision was 936 staff-months, or 330% more. However, the actual technical assistance cost of US$1,286,000 exceeded the appraisal estimate by only 4%. 4.09 In civil works and related professional services, the project performance measured against appraisal targets was as follows: 13/ Paper stock as of December 1981 was estimated to be adequate for at least the 1982 production, at most for up to the third-quarter 1983 production. - 52 - Appraisal Performance 107 Provincial Warehouses 13,749 sq m 54 Provincial Warehouses 5,817 sq m 2 CDCs 3,502 sq m 2 CDCs & 1 RSDC 5,516 sq m 1 Central Warehouse 4,643 sq m 1 TBS Warehouse & Office Complex 18,000 sq m/a Total 21,894 sq m 29,333 sq m /a In September 1976, the Bank approved the project unit's decision to provide the TBS with office space within the central warehouse complex. The project constructed 7,439 square meters more than the estimated area dur- ing appraisal, or an increase of 34%. However, because the actual cost per square meter, US$127.36, was 2% less than the appraisal estimate of US$130 per square meter, the actual cost of civil works, including professional fees, was US$3.92 million, exceeding the appraisal cost of US$3.38 million by only US$540,000, or 16%. 4.10 In furniture and equipment, the project's expenditure of US$4.24 million was 2% more than the appraisal estimate of US$4.16 million. Unit Costs 4.11 The paper cost per textbook copy printed, net of the value of the overstock (para. 4.04), was 46% more than appraised. The cost of printing and binding, on the other hand, was 51% less than appraised (Table 4.02). The production mix of local manufacturing of books using totally imported paper was about 27% printing and 73% paper, a departure from the industry's rule-of- thumb of a 50-50 even share of printing and paper costs per book as reflected in the appraisal estimate. - 53 - Table 4.02: TEXTBOOK UNIT COST (US$) Appraisal Estimated Cost item estimate actual cost Variance Paper 0.242 0.353 + 46% Printing 0.265 0.129 - 51% Unit Production Cost 0.507 0.482 - 5% Development 0.284 0.058 - 80% Distribution 0.087 0.175 +101% Teacher training 0.123 0.180 + 46% Other Publication Cost 0.494 0.413 - 16% Unit book cost 1.001 0.895 - 11% Other project costs: (Civil works, furniture & equipment, professional fees, technical assistance) 0.325 0.285 - 12% Unit project cost 1.326 1.180 - 11% Contingency allowance 0.583 - Recurrent costs - 0.069 Textbook unit cost 1.909 1.249 - 35% 4.12 Distribution cost per copy actually delivered was double that esti- mated. The unit cost of distribution per textbook was US$0.175 (P 1.93). Of that amount, warehousing in Manila was 1.6% (P 0.03); freight-forwarding from Manila to the local warehouse, 13.7% (P 0.26); and local distribution from the warehouse to the school, 84.7% (P 1.64). Relative to the unit cost of distri- bution the local costs covered by the project's annual financial assistance to the various education regions were the following: local transportation, 44.4% (P 0.86); salaries of temporarily hired staff, 20.9% (P 0.40); and maintenance and operating expenses of the local warehouse, 19.4% (P 0.38). 4.13 Although teacher training also incurred a cost overrun of 46%, the very low textbook development cost made up for it, so that the unit book cost, that is, production cost plus development, distribution, and teacher training costs, was 11% lower than appraised. Likewise, the value of physical facili- ties and technical assistance imputed to every copy printed was 12% lower than appraised. The actual unit project cost, taking all expenditures against all textbook output, was 11% lower than appraised. Compared with the appraisal project cost (equivalent to base cost) including contingency, the actual - 54 - project cost including recurrent expenditure (para. 4.14) was 35% lower than appraised. 4.14 The e.nnual average recurrent cost of salaries and operating expenses generated by the project was about US$30 62.42. In local currency, the recurrent costs,by year were as follows Peso 1976 833,466.08 1977 1,611,082.22 1978 613,836.83 1979 2,060,780.12 1980 3,441,742.35 1981 5,074,778.52 Total 13,635,686.12 Disbursements 4.15 Table 4.03 shows the plan for disbursements for 1976-80 and the actual loan disbursement performance on the extended project, 1976-83. The first year and the last year of the original four-and-one-half-year project showed greatest financial activity, exceeding the plan 120% and 12%, respec- tively (Annex 8). The middle years' performance was below the appraisal plan, and the extension to September 30, 1983 for submission of applications for withdrawal allowed for needed time to effect pending financial transactions. As of the final closing date, all loan funds had been applied for against con- tracts signed as of June 30, 1983, mostly for the completion of the TBS build- ing in Diliman, Quezon City. 14/ At various conversion rates. See Basic Data Sheet. - 55 - Table 4.03: LOAN DISBURSEMENTS, 1976-83 /a (US$ million) Actual disbursements as a percentage of appraisal Appraisal Cumulative actual estimate estimate disbursements (%) 1976 .0 .0 0 1977 1.0 3.0 300 1978 5.7 5.0 88 1979 12.9 7.6 59 1980 19.0 10.9 63 1981 25.0 19.9 80 1982 - 21.9 - 1983 - 24.7 Total 25.0 24.7 lb /a The actual disbursement figures are based on t4e Bank's Loan Department records. /b The loan amount was reduced to US$24.7 million on March 16, 1983 when US$270,000 intended for a printing contract was cancelled owing to nonaward of contract. E. OUTSTANDING ISSUES 5.01 The "roject introduced innovative approaches for providing learners with adequate and quality instructional materials. The integration of the varied and previously dispersed activities of the textbook development process under a single management structure implied the evolution of a well- orchestrated project of continuing and long-term duration. Because the project was dynamic, complex, specific in output and time-bound, it was expected that the undertaking would not be impervious to a broad range of implementation problems. The more significant ones are cited below. They concern the institutionalization process, the issue of increasing private sector involvement, and implementation problems still unresolved at the time of project completion. Institutionalization 5.02 The management structure established lacked the flexibility and authority to promote self-viability in textbook and institutional materials development, production, and distribution. Two organizational studies, done in 1978 and 1981, recommend the transformation of the project unit into a governmental corporation to enable it to run more efficiently and effectively on a self-sustaining and long-term basis. A smooth transition in operations - 56 - from TBS into the Instructional Materials Development Corporation (IMDC) was intended to take place prior to the activation of a second-phase project in 1982 (Annex 3). These arrangements embodii,in the presidential directive to establish the new body, were not approved., 5.03 On a related issue, there was difficulty in attaining ana maintain- ing the desired proportion of qualified staff for the project technical staff. This upset work schedules for textbook development and production. The cause was attributed to the lack of an attractive compensation scheme. In the new textbook corporation, the compensation and benefit plan would have to be competitive with private industry to attract and retain competent personnel. 5.04 With the current concern over the need to engage the private sector more actively in the project (para. 5.05), the role and future of the CDCs need to be described. The continuous flow of publishable textbook manu- scripts, once assured under the project network which included sustained support of the CDC authors, researchers, consultants, and other specialists is now in jeopardy especially as the new Elementary Sector Project needs learning materials to support the New Elementary School Curriculum not as yet available from private sector sources. The Private Sector 5.05 The prevailing sentiment among textbook publishers in the private sector was that the project hampered the growth of the book industry, despite initial steps taken by the project toward soliciting greater private sector participation. The project licensed private publishers through public bidding for the exclusive right to print and sell commercial editions of project text- books. When publishers complained that bidding depressed prices unnaturally, the exclusivity clause was removed and reprinting fees were charged instead, open to all comers on free price competition. The project also admitted books developed by the private sector into the project. Under this arrangement, Lhe publisher sold limited, government-edition rights to the project which then paid royalty to the publisher based on quantities printed and distributed. Although all paper, printing services, and delivery services were procured by the project from the private sector, the book publishers remained convinced that for as long as the Government itself originated manuscripts their own existence was threatened. F. CONCLUSIONS 6.01 On balance, the twofold general objective of the project--production and institutionalization--was attained. Relevant and apparently cost- effective textbooks and teacher materials were developed, printed, and distri- buted. The institutional network for all textbook-related tasks was built and a central agency was organized with qualified managers and specialists to manage the large-scale nationwide operation. 15/ A new presidential decree institutionalizing the TBS as part of an educational foundation is being submitted to the President for approval. - 57 - 6.02 However, the risks identified at appraisal, although outweighed in fact by the benefits derived from the project, persist6d. On the one hand, the system's ability to sustain production so that book supply in the field would always be adequate was less than evident. Book gaps began to be felt again in 1981, as the ratio between books and school children widened, espe- cially for subject and grades served earliest, in 1977 and 1978; revision and reprinting were late. The commitment to maintain the established institutions seemed doubtful. The CDCs after 1981 had no cl 19 mandate to proceed along development lines conceived seven years before. Within the context of the Government's newly emergent policies on curriculum reform by the Ministry under a new elementary sector project and on eliciting support from publishers in the private sector for the origination and supply of instructional materials, the CDCs seemed destined to play the marginal, residual roles of providing technical support or filling development gaps that other institutions might not have filled. 6.03 The question of the TBS' own existence would be of greatest concern to both the Government and the Bank. The process of legalizing the status of the project into a permanent body had been slow, despite frequent urging by the Bank. Although studies were made regarding the legal, financial, and technical options for making TBS the permanent textbook development unit of the Government (Annex 3), opinions varied as to the nature of the permanent institution. The Ministry of Education, Culture and Sports developed the concept of a regulatory body (Instructional Materials Council) to replace the Textbook Board and a separate proprietary body (Instructional Materials Development Corporation) with its own equity, to be staffed from the ranks of TBS. Other governmental agencies, notably the Office of the Budget and Management and the Presidential Reorganization Commission advised that a regular service unit within the Ministry would sufficiently carry out the purposes of educational publishing for the Government. The issue took time for resolutirn, and although the legal measure for institutionalizing the TBS was submitted to the Office of the President, it was not approved. It is foreseen that the regulatory council IMC would be established in line with the larger-scale reorganization of the education ministry, and TBS would be perma- nentized as a regular office of the ministry directly responsible to the Minister of Education, Culture and Sports. II. OBSERVATION AND LESSONS LEARNED BY THE BANK 7.01 The Third Education (Textbook) Project largely achieved the objec- tives of institutionalizing and expanding the supply of textbooks. However, several institutional issues remain unresolved and are being addressed in the Elementary Education Project. 16/ Two CDCs were abolished: the Central Luzon State University in 1979 and the Ministry's own Social Studies Center in 1982. - 58 - Observations 7.02 Institutional Coordination. Despite the project's success in build- ing a network for the development and production of textbooks, several flaws existed in the system. One major one is the poor linkage between curriculum and manuscript development. The preparation of scope and sequence content plans among manuscript writing groups was not coordinated with the Curriculum Development Division, causing redundancy in the coverage of some textbooks. The coordination of the various production activities was further complicated by the decision in 1980 to introduce a new elementary education curriculum by 1983. Textbook production plans had to be revised. Book supply was reduced so that by 1981 textbook shortages became evident again. 7.03 Legal Status of Institutions. Weaknesses in the system's linkages can be traced to the ambiguous status of the coordinating bodies. The curri- culum advisory body, BETDECCO, lacked the formal legal basis to enforce lateral linkaging and coordinate the presentation of concepts and skills across subject areas. Another important issue is the states of the TBS, which remained by the end of the project a temporary unit under the Ministry of Edu- cation. This has caused the agency to suffer, among other difficulties, the loss of trained staff due to absence of job security. Two organizational stu- dies recommended the transformation of the unit into a governmental corpora- tion to enable it to run more efficiently and on a permanent basis. 7.04 Approval and Disbursement Procedures. The approval system for contracting is couplicated and time consuming. This often caused delays in printing and textbooks reached the schools late. Also, disbursement for dis- tribution expenses had to go through many channels before reaching the local offices. During the process, the disbursement authority document sometimes lapsed and had to undergo a complex revalidation procedure. 7.05 Paper Procurement. In the beginning years of the project, paper was procured by the printer as part of the printing contract. The paper was con- signed to EDPITAF, which assisted the printer by securing tax exemption for the purchase. This procedure was difficult to implement and did not make clear who was responsible for the paper when it arrived in bulk from over- seas. The procurement procedure was modified in 1979 when the responsibility for paper purchase was assigned to the project unit and separated from the purchase of printing services. However, TBS was not adequately staffed or equipped for the management of thousands of tons of paper. Delays in edito- rial and art activities and in processing printing contracts resulted in over- stocking of paper, one of the reasons for cost overruns. Printers often com- plained of delays in paper releases, damaged and unusable paper released to them, shortages or issuance of wrong stocks. 7.06 Role of Private Sector. The role of the private sector remained unclear at the end of the project. Private publishers felt that Government's involvement in developing manuscripts hampered the growth of the book indus- try. The Government's latest policy is to elicit support from publishers in the private sector for the origination and supply of instructional materials, but this has the effect of downgrading the institutions designated as Curricu- lum Development Centers under the project. Two CDCs have been abolished and - 59 - the rest seemed destined to play the marginal, residual roles of providing technical support or filling development gaps. Lessons Learned by the Bank 7.07 The project provided useful experience that helped shape the follow- up textbook component in the Elementary Education Project. Based on this experience, the latter project made the following provisions: 7.08 Institution-building. In order to give the textbook agency the authority and support it needs to carry out its functions, it was recommended that the TBS be converted into a permanent government corporation, the Instructional Materials Corporation. The new management structure would pro- vide the flexibility and authority to promote self-viability in textbook development, production and distribution which the TBS lacked. The project also recommended the formation of an Instructional Materials Council, an inde- pendent body responsible for approving textbooks and other instructional mate- rials appropriate for the curricula in elementary and secondary schools. To widen representation, the Council would have an expanded board of directors chaired by the Minister of Education and include publishers from the private sector. 7.09 Revised Distribution and Procurement Practices. To reduce the distance between stocks and end-users, an additional 26 warehouses would be built in the new project. In addition, the regional warehouses would be authorized to deliver directly to schools rather than through the provincial and district offices of the MEC as in the first textbook project. Budget pro- visions would be made to the regions to carry out distribution responsibili- ties and a local ordering system would be instituted to reduce the incidence of delivery shortfalls and surpluses. Also, a paper procurement system that would replenish paper stocks amounting to estimated annual requirements would be introduced. Arrangements with an international bank were proposed to expedite the forwarding of documents required for off-loading in Manila. 7.10 Private Sector Participation. To clarify the role of the private sector and promote the development of a healthy publishing industry, MEC was requested to complete the plans for purchasing instructional materials from private publishers, including statements on related incentives and the limits of Government's publishing responsibilities. The private sector would also be represented in the Instructional Materials Council (para. 7.08). -60- ANNEX I Page 1 MALACANANG MANILA PRESIDENTIAL DECREE NO. 687 FURTHER AMENDING THE TEXTBOOK LAW, ACT 2957 AS AMENDED, PROVIDING THE GUIDELINES IN THE SELECTION, APPROVAL, PRICING AND DISTRIBUTION OF SUITABLE TEXTBOOKS FOR USE IN PUBLIC ELEMENTARY AND SECONDARY SCHOOLS AND FOR OTHER PURPOSES. WHEREAS, the Board on Textbooks performs the vital function of selection and approval of textbooks for use in all public elementary and secondary schools, including the approval of textbooks used in private ele- mentary and secondary schools; WHEREAS, in order to perform this function effectively and properly, it is necessary that the Board be composed of persons with the highest com- petence, dedication and integrity, with authority to avail of such technical assistance as may be necessary to insure proper evaluation of manuscripts and the selection and adoption of quality textbooks for use in the public schools; WHEREAS, the objective of selection and production of quality text- books can be achieved by allowing open and free competition in the submission of manuscripts by qualified writers and the production thereof by duly re- gistered bonafide publishers, encouraging at the same time the production of textbooks by competent research staffs in government-organized curriculum research and development centers; WHEREAS, the assessment of production costs of any textbook adopted by the Board for the purpose of determining prices at which textbooks can be sold at the minimum cost require the adoption of a scheme whereby a fair and just appraisal thereof can best be arrived at; WHEREAS, a degree of control in the actual procurement and alloca- tion of textbooks needed in the field should be exercised by the Board to insure the equitable distribution thereof based on needs; NOW, THEREFORE, I, FERDINAND E. MARCOS, President of the Philippines, by virtue of the powers vested in me by the Constitution do hereby order and decree to be part of the laws of the land, the following: SECTION 1. The Board on Textbooks created under the provision of Act 2957 as amended is hereby renamed the Textbook Board. The Board shall be composed of seven (7) members as follows: A Chairman and four (4) members appointed by the President upon recommendation of the Secretary of Education and Culture, the Director of Elementary Education and the Director of Secon- dary Education. The Chairman and the other four (4) members appointed by the President, one of whom shall represent the cultural minority, shall serve a term of three (3) years, except that of the four first appointed, two (2) shall serve a term of three (3) years and the other two (2) for a term of two (2) years. Any vacancy in the Board shall be filled by appointment by the - 61 - ANNEX 1 Page 2 President but the person so appointed shall serve only for the unexpired term. No person shall be appointed to the Board unless he is a citizen of the Philippines, with at least a master's degree or its equivalent in terms of professional experience, status and achievements. SECTION 2. The Textbook Board shall have a Secretariat composed of personnel as are now provided under the Integrated Reorganization Plan. SECTION 3. The Board may avail itself, at any given time of such numbev of qualified personnel from the public or private sector to perform the function of appraisal of manuscripts submitted for evaluation and selection by authors or by duly registered book publishers. They shall be entitled to such honorarium for their services for such amount per title as may be determined by the Board. SECTION 4. The Board shall determine and adopt its own guidelines or rules and regulations for their operational procedure. It shall adopt such policies as will insure a fair and objective appraisal of manuscripts sub- mitted to it for evaluation, the criteria for the final selection and approval as textbooks and a policy on continuing evaluation of those approved and adopted by the Board. It shall likewise undertake studies from time to time on the textbook situation in the country, seek ways and means for their pro- duction at minimum cost, and adopt policy guidelines in the allocation and distribution of textbooks in accordance with the procurements program of the Department of Education and Culturq. SECTION 5. The policy of free enterprise on the matter of allowing the submission of manuscripts by writers or duly registered publishers for possible selection and adoption as textbooks shall be without prejudice to the automatic adoption by the Board of any treatise, textbook or manual on the same subject prepared by agencies authorized by the Government; Provided, however, that in the case of the latter, the printing or production thereof shall be farmed out to qualified textbook publishers or printers under such guidelines as may be prescribed by the Board. SECTION 6. The manuscript thus selected and approved by the Board, in accordance with Sec. 5 hereof, shall be printed in such number of copies and under such guidelines as the Board may direct, such copies to be used for determining the reasonable price at which the book shall be purchased by the Government, provisions of existing law to the contrary notwithstanding. For this purpose, there shall be created by the Secretary of Education and Culture, a Price Committee consisting of three (3) members, one Board member representing the Board as Chairman, one representing the Philippines Educational Publishers Association, one representing the Bureau of Printing. The Committee shall hold its meetings on the date set by the Board which shall be in the nature of a public hearing, allowing expert testimony therein in order to arrive at an acceptable estimate of production cost for any given textbook. The determination of the "mark-up" in percent over the production cost for any textbook to insure a reasonable profit for publishers and at the same time insuring the minimum procurement cost for the Government shall be determined by the Board. - 62 - ANNEX 1 Page 3 SECTION 7, It shall be unlawful for the Board to consider for adoption any treatise textbook or manuscript in whose authorship, editorship or preparation a me ber of the Board may have direct or indirect interest. It shall, likewise, be unlawful for any member of the Board during the period of his incumbency to own directly or indirectly any interest whatsoever in any firm, partnership or corporation on publishing or dealing in school textbooks. SECTION 8. Except in exceptional cases as may be determined by the Board, the textbooks selected and approved shall be used for a period of at least six (6) years from the date of their adoption. Private schools re- cognized or authorized by the Government shall, as much as possible, use textbooks approved by the Board. The Board shall have the power to prohibit the use of any textbook in private schools other than those approved by the Board, which it may find to be against the law or offensive to the dignity and honor of the Government and people of the Philippines or which it may find to be against the general policies of the Government or which it may find as pedagogically unsuitable. SECTION 9. The Board shall, as a matter of policy encourage the writing of textbooks for Philippine schools by Filipine authors using such Philippine sources of subject material as will develop in pupils and students a deeper sense of nationalism, respect for Philippine institutions and appreciation of our cultural heritage. SECTION 10. For administrative purposes, the Textbook Board shall be directly under the Office of the Secretary of Education and Culture. The Chairman of the Board shall have authority, with the approval of the Depart- ment Head, to obtain the technical assistance of such personnel from any department, bureau or office of the Government which may be considered necessary for the proper performance of its duties, with compensation for their services as may be determined by the Board. SECTION 11. Members of the Board shall be entitled to an allowance of One-Hundred (P100.00) Pesos per meeting actually attended but not exceeding Four Hundred (P400.00) Pesos a month, exclusive of reimbursement of actual and necessary expenses incurred in attendance of meetings and other official business authorized by resolution of the Board. SECTION 12. The sum of One Hundred Thousand (P100,000.00) Pesos or so much thereof as may be necessary shall, in addition to the regular annual appropriations for the operation and maintenance of the Textbook Board, be appropriated annually from funds of the National Treasury not otherwise appro- priated to carry out the provisions of this Decree. SECTION 13. All laws, decrees, executive orders or existing rules and regulations contrary to or inconsistent with the provisions of this Decree are hereby repealed, amended or modified accordingly. - 63 - ANNEX 1 Page 4 SECTION 14. The Decree shall take effect inmediately. Done in the City of Manila, this 22nd day of April, in the year of Our Lord, nineteen hundred and seventy-five. (SGD.) FERDINAND E. MARCOS President Republic of the Philippines By the President: (SGD.) ALEJANDRO MELCHOR Executive Secretary - 64 - ANNEX 2 Page 1 MALACANANG MANILA LETTER OF INSTRUCTIONS NO. 873 VESTING IN THE TEXTBOOK BOARD THE CONTINUING DEVELOPMENT, PRODUCTION, AND DISTRIBUTION OF TEXTBOOK FOR THE PUBLIC SCHOOLS AND ESTABLISHING AN ADMINISTRATIVE MACHINERY THEREAT TO: THE MINISTER OF EDUCATION AND CULTURE THE MINISTER OF BUDGET THE CHAIRMAN, COMMISSION ON -,UDIT WHEREAS, one of the educational development projects under the Ten- Year Educational Development Program as embodied in Presidential Decree No. 6-A is the design, utilization, and improvement of instructional techno- logy and development/production of textbooks and other instructional materials; WHEREAS, the critical shortage of textbooks in the public schools compelled the Philippine Government to enter into a Loan Agreement with the International Bank for Reconstruction and Development (IBRD) to finance a Textbook Project which under said Agreement was to be initially managed by the Educational Development Projects Implementing Task Force (EDPITAF) in coordi- nation with the Textbook Board of the Ministry of Education and Culture; WHEREAS, a Textbook Project staff was created as a precondition to the effectiveness of said Loan Agreement; WHEREAS, with the termination of the Loan Agreement by Year 1981, the Philippine Government will, as a national policy, continue with the Text- book Project for Philippine schools under the supervision of the Minister of Education and Culture through the Textbook Board; WHEREAS, the Textbook Board as established and organized under Presidential Decree No. 687 is not in a position to adequately and effectively perform the continuing development, production, and distribution unless it is provided with the necessary administrative services and qualified technical staff to pursue the Textbook Project efficiently; NOW, THEREFORE, I, FERDINAND E. MARCOS, President of the Philippines by virtue of the powers vested in me by the Constitution do hereby order and direct that: 1. The Textbook Board shall have an administrative unit adequately staffed with accounting, budgeting, administrative and other regular supportive personnel. The unit shall be headed by the Director of the Textbook Project. 2. The present Textbook Project staff which has been assigned with EDPITAF shall now be transferred to the Textbook Board and provided with full personnel complement needed to insure - 65 - ANNEX 2 Page 2 effective completion of the present Textbook Project by Year 1981. The hiring and compensation of the Textbook Project staff shall be exempt from existing regulations governing appointments and compensation of government employees. 3. The Textbook Board shall have the power to hire personnel, engage the services of technical consultants and other experts, and enter into contracts and negotiations necessary in the implementation of the Textbook Project. 4. In accordance with the provision of Presidential Decree No. 6-A, the Textbook Board in implementing the Textbook Project shall be empowered to import articles, materials, equipment, machinery, and supplies free from all dutieL, fees, imports, and all other charges and restrictions imposed by the Republic of the Philippines or any of its agencies or political subdivisions. 5. The Minister of Budget shall see to the additional appropria- tions for the Textbook Board to carry out its additional func- tions. 6. The Chairman, Commission of Audit shall assign a Resident Auditor to the Textbook Board. Done in the city of Manila, this 13th day of June, in the year of Our Lord, nineteen hundred and seventy-nine. (SGD.) FERDINAND E. MARCOS President Republic of the Philippines - 66 - ANNEX 3 Page 1 Republika ng Pilipinas (Republic of the Philippines) MINISTRY NG EDUKASYON AT KULTURA (MINISTRY OF EDUCATION AND CULTURE) Manila June 1, 1981 MEC 0 R D E R No. 27, s. 81 I.M.C. MANAGEMENT TEAM To: Bureau Directors Regional Directors Cultural Agency Directors Chiefs of Services and Heads of Units Schools Superintendents 1. In order to more adequately prepare for future dealings with World Bank representatives on the proposal for the Instructional Materials Corpora- tion (IMC), there is hereby established an ad interim Management Team with the following as members: Deputy Minister Abraham I. Felipe ........Chairman Atty. Tomas V. Santos ...............Vice Chairman Director Pacifico N. Aprieto ..............Member Representative of Presidential Management Staff ...................... Director Minda C. Sutaria 2. Prof. Ernesto A. Franco will serve as Consultant to the Team. 3. The Team will ensure smooth and effective integration of the Text- book Secretariat with the Instructional Materials Corporation in accordance with an appropriate legislation. Specifically, the Team will undertake the following: (a) General review of operations of the Textbook Board Secretariat (TBS) so as to determine status and conditions of projects, contracts, assets and liabilities, and personnel situation; (b) Review of the World Bank agreement to ensure compliance con- sistent with the integration objectives; and (c) Formulation of corporate plan, including legal documentation, for the IMC. -67 - ANNEX 3 Page 2 4. The Team shall undertake all necessary steps to achieve this inte- gration not later than August 15, 1981. It shall submit a status report to this Office w4thin this time. Immediate dissemination of this MEC Order to all concerned for proper guidance is requested. (SGD.) ONOFRE D. CORPUZ Minister of Education and Culture Reference: NONE Allotment: 1-2--(D.O. 1-76) To be indicated in the Perpetual Index under the following subjects: BUREAUS & OFFICES OFFICIALS REPORT - 68 - ANNE 4 PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PlI) PROJECT COMPLETION REPORT Project BuildinRe and Textbook Warehouses By IAcafloni ,Se ani-Cstrttroi aMt Buildings/varehousees Region City/province Textbook Board Secretariat National Quezon City 2,720 9,075,142.50 (TBS) Complex Capital Region (NCR) TE central warehouses NCR Queson City 1,960 5,704,000.00 Philippine Normal College - NCR Manila 2,088 2,986,528.24 Language Study Center Philippine College of Arts and NCR Manila 1,712 2,542,086.65 Trades - Practical Arts Center Textbook warehouse I Abra, Bangued 42 52,119.35 Bontoc, Mt. Province 42 51,168.35 Laoag, Ilocos Norte 63 62,858.07 Lingayea, Pangasinan 175 123,819.61 San Fernando, La Union 210 309,810.00 Vigan, Ilocos Sur 42 52,298.35 Textbook vareho"se II Basco, eatanes 42 52,000.35 Cabarroquis, Quirino 42 52,000.35 1lagan, Isabela 210 308,886.00 Tabuk, Kalinga-Apayao 42 51,940.35 Tuguegarao, Cagayan 42 77,242.35 Textbook warehouse III San Fernando, Pampanga 210 303,310.00 Palawan Teachers College - IV Palawan 1,390 1,914,408.36 Staff Development Center Textbook warehouse IV Aurora, Baler 42 52,000.35 Calapan, Or. Mindoro 175 260,111.00 lucena, Quezon 140 126,943.92 Odionggan, Roablon 42 58,926.35 Puerto Princess, Palawan 63 72,009.07 San Jose, Oce. Mindoro 42 58,926.35 Textbook warehouse V Daet, Camarines Norte 175 260,141.00 Ligao, Albay 140 126,242.92 Masbate, Masbate 84 82,944.35 Pili, Camarines Sur 84 82 817.35 Virac, Catanduanes 42 58,862.35 Textbook warehouse VI Bacolod City, Negros 0ec. 210 203 054.97 Iloilo City, Iloilo 175 200,572.15 Kalibo, Aklan 63 84,295.55 San Jose, Antique 63 88,710.55 Textbook warehouse VII Cebu City, Cabu 210 194,488.97 Dumaguete City, Negros Or. 105 117,520.55 Tagbilaran, Bohol 63 91,798.55 Textbook warehouse VIII Borongan, Eastern Samar 140 230,985.00 Calbayog, Samar 63 124,656.00 Catarman, Northern Samar 42 92,308.97 Nassin, Southern Leyte 42 69,495.97 Ormoc City, Leyte 42 64,850.97 Taclaban City, Leyte 140 146,906.82 Textbook warehouse IX BongSao, Tavi-Tawi 42 153,611.97 Dipolog City, Zeamboanga del Norte 63 88,524.55 Isabela, Basilan 42 119,089.97 Jolo, Sulu 42 146,706.97 Pagadian, Zambonaga del Sur 210 356,279.00 Zamboanga City 175 181,959.15 Textbook warehouse 1 Butuan City, Agusan del Norte 84 106,829.82 Cagayan de Oro City, Misamis Or. 105 128,048.55 Osamis City, Misamis 0cc. 63 81 616.55 Sirigao City, Surigeo del Norte 84 117,491.82 Textbook warehouse XI Davao City 210 212,226.97 Gen. Santos City 84 155,142.82 Lianga, Surigso del Sur 42 58,362.97 Textbook warehouse XII Cotabato City 140 146,305.52 Iligan City, Lanso del Norte 63 84,573.55 Kidapawan, North Cotabato 175 289,090.00 Koronadal, South Cotabato 175 289,090.00 Tacurong, Sultan Kudarat 140 245,000.00 -69- ANNEX 5 PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH) PROJECT COMPLETION REPORT Equipment Procured, by Type and Beneficiary Institution Quantity per institution Total Type of equipment TBS DEC-MIS DEC-RO CDC RSDC DHS ECO DLRC EDPITAY PDO/CDO quantity Vehicle Car, Bantam Nissan model I 1 - - - - - - - - 2 units Toyota Hi-Ace Commter 2 1 2 3 5 - - - 13 units Toyota Hi-Ace Delivery Van 2 - 1 - - - * * * 3 unite Toyota Land Cruiser 1 - 10 - 1 - - - - 12 units Forklift 2 - - - - - - - - - 2 units Audiovisual Video-tape recorder - - - 7 11 - ~ - - - 18 lots Video tapes - - - 60 103 - *- - - 160 pces. Cassette player - - - 17 223 - 394 - - - 634 sets Cassette tapes - - - 4,520 42,057 - 12,810 - - - 59,387 pes. Projector set 3 1 - 8 112 124 91 126 - - 521 sets Darkroom equipment 14 - - 1- - - - - 15 sets Camera equipment - - - 6 13 - - - - - 19 sets Film loops and player - 1 - 17 188 142 20 - - - 372 units File strip - 17 - 109 168 109 109 - - - 512 unite Transparencies - - - 18 112 64 46 - - - 240 units Television set - - - - 6 - 2 - - - 8 units Power supply set 5 - - 9 10 - - - - - 24 units Bobagraphic Rurocat photo- composition I - - - - - 1- - - unit Public address system - - - 2 - - - - - - 2 lots Intercom system 24 - - 7 - - - A - - 8 units Office Equipment Duplicating machine 3 1 13 12 131 94 11 123 2 - 390 units Small offset press - - - 1 - - - - - - 1 unit Dictating machine - - 3 - - - - - - 3 units Binding-punching machine 1 - - 4 - - 2 - - - 7 unite Typewriters 48 24 11 12 75 25 3 109 3 237 547 units Calculators 122 36 13 5 26 24 - - 21 - 247 units Adding machine 152 - - - - - - - - 92 244 unite Stapler 7 63 - 15 - - - - - - 85 units Puncher 11 6 - - 13 - - - - - 30 units Printing equipment 1 - - 1 - - 14 - - - 16 units Fire extinguisher 12 - - - - - - - 12 units Laboratory Equipment and Materials Chromegatrol - - - - 14 - - - - - 14 units Micromega focuser - - - - 8 - - - * - 8 units Paper testing equipment 1 - - - - - - - - - 1 unit Laboratory apparatus and materials - - - 381 20,573 - - - - - 20,954 units Chemicals - - - - 1,448,126 - - - - - 1,448,126 gas. Maps/charts - - - 12 212 - - - - - 224 pes. Furniture Steel cabinets 73 - - - - - - - - - 73 units Tables and chairs 151 - - - - - - - - - 151 units Stand and shelves 24 - - - - - * - - - 24 units Beds with mattresses 11 - - - - - - - - 11 sets Refrigerator 2 - - - - - - - - * 2 units Electric fans/air condi- tioner 4 34 - - - - - - - - 38 units Books Reference, encyclopedia 786 - 2,339 - 1,308 - - 4,433 cps. - 70 - ANNEX 6 PHILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH) TAOJECT COMPLETION REPORT Foreign and Local Consultants Engaged, by Field of Expertise and Beneficiary Institution Beneficiary institution/ consultants (foreign and local) Field of expertise Textbook Board Secretariat (TBS) - EDPITAF Mr. Ander Richter (F) Publishing management Miss Linda Scher (F) Editorial management Mr. Peter Bender (F) Arts and design Mr. Donald Maricovics (F) Paper procurement Mr. Leslie David (F) Curriculum development Mr. Stephen Banta (F) Editorial management Mr. James Rose (F) Management information systems Philippines College of Arts and Trade (PCAT) Mr. Daya Amanda Perera () Practical arts (curriculum development) Preinvestment Study of Communica- tion Technology on Education (PIS-CTE) Dr. Lester Goodman (F) Senior consultant on PIS-CT project Dr. Harold Oxley (F) Senior consultant on PIS-CTE project Mr. Jack Soifer (F) Media planning Mr. Chaiyong Bramahwong (F) Media production Mr. John Shaw (F) Radio production Mr.Lian Fook Shin (F) Media administration Mr. Albert Horley (F) Systems analysis Mr. James Janky (F) systems analysis Mr. Stuart Wells (F) Economics/cost analysis Mr. Steven Russel (F) Cost analysis Mr. James Barewald (F) Cost analysis Dr. Gloria Feliciano (L) Evaluation/research Dr. Josefina Patron (L) Media planning Dr. Aurelio B. Calderon (L) Education planning Engr. John Lauengco (L) Administration Mrs. Zenaida Domingo (L) Media planning Mr. TowAs Revuelta (L) Media administration Ms. Ielicidad Consignado (L) Development information Ms. Rachel Cabato (L) hconomice Mr. Gregorio Morales (L) Transmission engineering Mr. Conrado Cansion M Broadcast engineering Dr. Nora C. Quebral (L) Development communication Dr. Frine Jimenes ( Formal education Dr. Higino Ables (L) Agricultural extension Dr. Tito Contado (L) Agricultural extension Dr. Concesa Baduel (L) Teacher training education Dr. Galicano Datu (L) Teacher training education Dr. Dolores Hernandes (L) Teacher training education Dr. Leticia Salazar (L) Teacher training education Mrs. Balbina Codilla (L) Teacher training education Dr. Romeo Saplaco (L) Teacher training education Dr. Flore xino Librero (L) Rural development Dr. Remigio Romulo (L) Rural development Mr. Marulo Angeles (L) Rural development -71 - ANNEX 7 PRILIPPINES THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH) PROJECT COMPLETION REPORT Fellowship Availment by Area of Study and Beneficiary Institution Beneficiary institution/ Staff- fellow Area of study months Textbook Board Secretariat Aprieto, Pacifico Publishing management 1.50 Roque, Socorro Publishing management 5.00 Javier, Alberto Book design and art 5.00 Baradi, 81vino Warehousing operations 2.00 Reyes, Remedios de los Editorial and other publishing practices 5.00 Maglambayan, Ballegui Teacher training 2.00 Brawner, Films Educational statistics and data computerization 2.50 Miranda, Epifania Administrative management of publishing organizations 2.00 Jesus, Minerva de Manuscript development and editorial management 2.00 Aguilan, Reuben Textbook warehousing and distribution system 2.00 Coronel, Irma Program evaluation, educational testing and cost bene- f it analysis 2.00 Sanchez, Fel1sberta Distribution operations and management 1.00 Espiritu Santo, Florinia Distribution operations and management 1.00 Abcede, Marietta Distribution operations and management 1.00 Corrales, Reynaldo Book manufacture, paper technology and quality control 1.00 Tibayan, Marciano Printing and paper knowledge and procurement procedures 1.00 Lleva, Nadja Printing and paper knowledge and procurement procedures 1.00 Apolonio, Nellie Formative evaluation of textbooks and related materials 25.50 Serrano, Julieta Editing and production procedures 2.00 Technolosical University of the Philippines (TUP) Gonzales, Flora Curriculum and manuscript development, practical arts 2.00 Trinidad, Carloc Curriculum and manuscript development, practical arts 1.50 Adiviso, Bernardo Curriculum and manuscript development, practical arts 1.00 Vergara, Jose Curriculum and manuscript development, practical arts 1.00 Baking, Rodolfo Curriculum and manuscript development, practical arts 1.00 Ministry of Education and Culture - Social Studies Center (MEC-SSC) Agustin, Marlita Curriculum and manuscript development, social studies 3.75 Salasar, Leticia Curriculum and manuscript development, social studies 1.50 Mateo, Estelita Curriculum and manuscript development, social studies 3.00 Hidalgo, Fe Curriculum and manuscript development, social studies 0.50 Somera, Lirio Curriculum and manuscript development, social studies 3.00 Luis, Lidinila Curriculum and manuscript development, social studies 3.00 Palensuela, Gloria Curriculum and manuscript development, social studies 3.00 Duran, Aurea Curriculum and manuscript develorment, social studies 1.00 Andrada, Lolita Curriculum and manuscript development, socipl studies 1.00 Ibarrola, Concepcion Curriculum and manuscript development, socia studies 0.25 Andres, Pacita Curriculum and manuscript development, social studies 40.00 Philippine Normal College (PNC) Castillo, Eas Curriculum and manuscript development and language testing 11.*50 Sibayan, Bonifacio Curriculum development 2.00 Espiritu, Clemencia Curriculum development 2.00 Gusan, Estefania Curriculum development 2.00 Cortez, Lilia Curriculum development 2.00 Otanes, Fe Bilingual education 1.00 Eclipse, etelita English for special purposes 2.00 Pabellon, Josefina Curriculum development 2.00 Regano, Beneto Curriculum development 2.00 Sangel, Rodolfo Curriculum development 2.00 Total 136.50 - 72-* ANNEX 8 P1IIIIPPINES TID EDUCATIOU (TEX?B00K) PROJECT (LOAN 1224T-PIH) PROJECT COMPLTION 88R t cattented and Actual Project At Ytear and Tpe of Expeoditure Tetbook developeent Curriculum U l. t Paper Printing, Delivary of Total Civil furni- Equip- Profeseonal Technical Teacher eanuscript writing Edittag & Testing 6 brokerage binding & prototype 6 project works tore anet services Assistance training 6 teeting publishing feedback & handling packaging textbooks costs 1976 wpralsol eatt"ste 3- 39 462 65 620 - 822 522 609 1,613 - - 4,752 Actual cost 16 348 24 145 164 900 572 30 57 - 338 68 2,636 (2,576) (1,073) (6,660) (4,233) (150) (4253) (2.500) (500) Actual costs as X of appraieal estimate (4 or -) - -95 +123 -73 * -30 -96 -90 - * * -44 1977 rppraisal estiate l 3.177 300 3,556 113 486 1,077 1.099 593 694 1,891 1,864 621 15.499 Actual cost L I.395 544 - 420 927 265 10 8 1,774 323 251 5,917 (10298) (6.859) (1,962) (77) (31) (2,594) (1,83 Actual costs as I of appraisal -3 -2 -5.6-4) estteats (+ or -) -56 -85 - -13 -13 *75 -98 -98 *6 -82 -59 -61 1978 ippratlal estimate la 1,362 96 1,115 23 351 1,164 2.116 673 786 2,211 2,151 708 12.768 Actual cost /b - 775 424 - 180 899 228 30 724 2,030 742 970 6,279 (5.669) (6,580) (1,671) (223) (5.299) (5,428) (7,098) Actual coats as I of appraisal estimate (+ or -) -43 -64 - -49 -22 -89 -95 -99 -8 -65 +37 -50 1979 Vpraisal estimate /a - - - - 93 1,255 - 1,220 1.425 4.176 2,433 800 11.402 Actual cost /b 333 658 - 185 1,015 83 36 7 3,192 1,972 1,028 8,509 (2,447) (7,448) (610) (267) (52) (14.476) (7,548) Actual coats as 1 of appraisal estimate (+ or -) + - - - +98 -19 - -91 -99 -23 -18 +28 -25 1980 =ipraisal estlaste ia - - - - 35 1,260 - * - - 4,426 1,455 7,176 Actual cost b - 43 - 16 300 917 36 139 7,248 923 1,585 11,215 (2,235) (6,822) (252) (4) (6.870) (11,796) Actual costs as I of apprateal estimate (+ or -) - - - -37 -76 - - - - -79 +8 +56 1981 Tpraisal estimate Is - * - - - - - - - - - - - Actual cost - 389 118 1,906 83 58 - 2,106 952 1,694 7.306 (14,875) (646) (449) (7,428) (13,221) Actual costs as I of appraiaal setimate (4 or -) - * - - - - - - - - - - - 1982 Ipraisal estimate /I - - - - - - - - . - . - . Actual cost Ab - 1,914 - - - - . - . - - . Actual costs a. Z of appraisal estimate (+ or -) - - - - - - - - - - - - . 1983 IFpraisal estimate /0 - - - - - - - - . - - - - Actual cost Lb 885 241 42 54 - - - - - - - (8,738) (410) Actual costs as I of appraisal estimate (+ or -) - - * - - - - - - - - . - Total vpraisal estimate /a 4 539 443 5,133 201 1,591 4,756 4,037 3,008 3,S14 9,897 10.894 3,584 51,597 Actual cost b 3736 4,137 187 1,286 5,947 2,148 18 73 16,350 5,350 5,596 Actual costs as X Of appraisal (29 728) (1,483) (4,465) (15944) (17,362) (514) (39,096) (42016) 45,098 eetiate (+ or -) -18 -24 -7 -19 +25 -46 -93 -97 +65 -1 +56 -12 / Appraisal cost Includes contingency allowances - physical and price increases. 7 Figures in brackets are peso equivalent in thousands.