Ghana - First Education Sector Adjustment Credit

Document of The World Bank FOR OFFCIAL USE ONLY Report No. 13575 PERFORMANCE AUDIT REPORT GHANA FIRST EDUCATION SECTOR ADJUSTMENT CREDIT (CREDIT 1744-GH) SEPTEMBER 30, 1994 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. CURRENCY EQUIVALENTS Currency Unit = Cedis US$ 1 = 128-151 Cedis (September 1986) US$ - 512 Cedis (December 1992) FISCAL YEAR January 1 - December 31 ABBREVIATIONS AND ACRONYMS AfDB = Africa Development Bank CEE = Common Entrance Examination EdSAC1 First Education Sector Adjustment Credit GES = Ghana Education Service HERP = Health and Education Rehabilitation Project JSS = Junior Secondary School MS = Middle School MoE = Ministry of Education MoH = Ministry of Health P-6 = Sixth Grade, Primary School PBME = Planning, Budgeting, Monitoring and Evaluation Division PMU = Project Management Unit PREP = USAID Funded Primary Education Program SSS = Senior Secondary School UNICEF = United Nations Children's Fund UNDP = United Nations Development Programme USAID = United States Agency for International Development FOR OFFICIAL USE ONLY THE WORLD BANK Washington, D.C. 20433 U.S.A. Office of Director-General Operations Evaluation September 30, 1994 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Performance Audit Report on Ghana First Education Sector Adjustment Credit (Credit 1744-GH) Attached is the Performance Audit Report on Ghana -First Education Sector Adjustment Credit (Credit 1744-GH) prepared by the Operations Evaluation Department. No comments were received from the Borrower. This credit provided support for an ambitious educational reform program that reduced the number of years required to complete pre-university schooling, revised the curriculum and expanded access to the junior secondary cycle, provided inputs (textbooks, supplies, equipment, training), strengthened planning and management of the system as a whole, and introduced a number of cost- sharing features. While the reform program has yet to live up to its primary objective-to improve learning outcomes while reducing costs - this project, one of seven Bank-funded projects supporting the overall program, supported the first critical steps towards that objective in a satisfactory way. The results are likely to be sustainable and institutional development has been substantial. Robert Picciotto by H. Eberhard K6pp Attachment 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 PERFORMANCE AUDIT REPORT GHANA FIRST EDUCATION SECTOR ADJUSTMENT CREDIT (CREDIT 1744-GH) TABLE OF CONTENTS Page No PREFACE ............................................................ i BASIC DATA SHEET ..................................................... iii EVALUATION SUMMARY ................................................. v 1 BACKGROUND..................................................... 1 2. PREVIOUS BANK INVOLVEMENT ...................................... 2 3. THE REFORM PROGRAM AND EdSAC1 .................................. 4 4. PROJECT IMPLEMENTATION .......................................... 5 5. PROJECT OUTCOMES AND SUSTAINABILITY ............................. 6 6. CONCLUSIONS ..................................................... 9 TABLES Table 1: Agreed Actions and Tranche Release Conditions ........................................... 11 Table 2: Bank Funded Education Projects in Ghana ......................... 13 Table 3: Allocation of Proceeds ....................................... 14 Table 4: Basic Education Access Indicators - 1980/81 to 1990/91 .............................................. 15 Table 5: Access and Quality Indicators by Level, Region and Year (1988/89 - 1990/91) ................................. 16 Table 6: Teachers in Primary and JSS/Middle Schools ........................ 18 The authors of this report are Ronald G. Ridker (Task Manager) and Richard Sack (Consultant). Pilar Barquero provided administrative support. 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.  PERFORMANCE AUDIT REPORT GHANA FIRST EDUCATION SECTOR ADJUSTMENT CREDIT (CREDIT 1744-GH) PREFACE This is a Performance Audit Report (PAR) of the First Education Sector Adjustment Credit (EdSAC1) in Ghana. The project was supported by a Bank Credit of US$34.5 million approved on December 9, 1986 and signed on March 9, 1987. The Credit closed on December 31, 1991 after two extensions totalling one year from the original closing date and was fully disbursed in April 1992. The PAR is based on the Project Completion Report (PCR) (No. 12622 dated December 22, 1993), the Report and Recommendation of the President of the International Development Association (No. P-431 1-GH dated November 13, 1986), the Loan Agreement (dated March 9, 1987), project files and Government documents. Additional information was obtained through discussions with Bank staff and Government officials involved in the project, the latter having been contacted during a visit to Ghana in October/November, 1993. Following standard OED procedures, copies of the draft PAR were sent to the Government for comments on April 8, 1994 but none were received.  - 1ft - PERFORMANCE AUDIT REPORT GHANA FIRST EDUCATION SECTOR ADJUSTMENT CREDIT (CREDIT 1744-GH) BASIC DATA SHEET KEY PROJECT DATA Appraisal Estimate Actual Total Project Costs (US$ m) 463.9 n.a. Credit Amount (US$ m) Disbursed 34.5 38.2 Cancelled 0.0 CUMUIATIVE ESTIMATED AND ACTUAL DISBURSEMENTS (US$ millions) IDA Fiscal Year FY87 FY88 FY89 FY90 FY91 FY92 Appraisal Estimate 8.70 18.70 28.90 34.50 Actual-' 9.36 12.52 17.19 27.09 37.30 38.32 Actual as 2 of Estimate 107.8 67.0 59.5 78.5 108.1 111.1 Because of the fluctuation of the US dollar against SDR, the project benefitted from additional funds equivalent to about US$3.8 million. All funds under Credit 1744-GH vere disbursed and no cancellation was required. STAFF INPUTS (STAFFWEEKS) FY86 FY87 FY88 FY89 FY90 FY91 FY92 FY93 TOTAL Preparation 66.0 66.0 Appraisal 16.7 1.8 18.5 Negotiations 6.3 6.3 Supervision 11.3 16.0 6.6 16.8 6.8 0.0 57.5 Completion1 1.0 1.0 2.0 Total 82.7 19.4 16.0 6.6 16.8 6.8 1.0 1.0 150.3 Host of the time spent was discounted by 25% since that time was charged by a locally hired higher level staff. - Iv - PROJECT TIMETABLE Item Original Date Revised Date Actual Date Preparation 09/85 Pre-appraisal 01/86 Initiating Memorandum 03/86 Appraisal Mission 03/86 Credit Negotiations 10/86 Letter of Education Development Policy 10/08/86 Board Approval 12/09/86 Credit Signature 03/09/87 Credit Effectiveness 04/08/87 Second Tranche Release 04/88 07/07/88 Third Tranche Release 04/89 03/07/90 Credit Completion 06/30/90 06/30/91 06/30/91 Credit Closing 12/31/90 06/30/91 12/31/9111 A second extension of the closing date from June 30, 1991 to December 31, 1991, was approved on March 4, 1991, to allow the delivery, which was expected to go beyond June 1991, of equipment and textbooks for which contract awards were considerably delayed. MISSION DATA Type of Mission Month/ NO of Days in Specializations Performance Year PersonsField Represented 41 Status by Activity Identification/Preparation 09/85 6 21 DDC, EP, E, CONS: E, TS, A, R/E Pre-Appraisal 01/86 2 12 EP, CONS: A Appraisal 03/86 1 10 EP Post-Appraisal I 05/86 1 6 EP Post-Appraisal II 07/86 1 6 EP Prenegotiatione 08/86 1 9 EP Supervision i 0 D C M F Pre-effectiveness 01/87 2 11 EP, A 2 n.r. n.a. 3 2 Supervision 03/87 2 10 EP, A 2 2 n.a. 2 2 Supervision 06/87 2 6 EP, CONS: TS 2 2 n.a. 2 2 First Tranche Review 03/88 3 10 ED, E, ED -- -- n.r. -- -- Second Tranche Review 09/89 5 8 ED, EP, E CONS: E, ED -- -- n.r. -- -- Supervision 03/91 1 5 RA 2 1 2 2 1 1/ A - Architect; DDC - Deputy Div. Chief; E - Economist; ED - Educator; EP = Education Planner; RA + Research Analyst; R/E = Researcher/Editor; TS = Textbook Specialist. 0 a Overall Status; D - Project Development Objectives; C = Compliance with Legal Covenants; M * Project Management Performance; F * Availability of Funds. 1 This project has received continuous supervision from the Task Manager located in Ghana since late 1987. PERFORMANCE AUDIT REPORT GHANA FIRST EDUCATION SECTOR ADJUSTMENT CREDIT (CREDIT 1744-GH) EVALUATION SUMMARY Background 1. After a decade of deterioration in its 3. In the end, approximately half the funds education system, Ghana launched a compre- provided were used for fixed assets (e.g., hensive education reform program in 1986. Its technical equipment for JSS and SSS) and in- goals are to replace the previous English-style ventories (e.g., textbooks, teacher guides and academic education based on 0 and A level school supplies) and the remainder for operat- examinations with a more vocationally and ing costs, technical assistance, and other practically oriented curriculum, reduce the expenses (e.g., Project Management Unit and number of years required to complete the pri- its Curriculum Research and Development Di- mary and secondary cycles, increase access to vision, in-service training, rehabilitation of basic education for the rural masses, improve secondary schools, and school pavillion instal- quality, and accomplish all this in a financially lation'). Some 38 percent of the Credit was sustainable manner. used for local cost finance. 2. The first Bank-supported project in this 4. Tranche release conditions included, sector, the Health and Education Rehabilita- among other things: implementation of struc- tion Project (Credit 1653-GH, 1986-1991) pro- tural and curriculum changes in the education vided inputs (textbooks and supplies) on an system; agreement on borrower's draft budget; emergency basis to stop the deterioration freeze on number of teaching posts; reduction while a more comprehensive program was be- in the number of untrained teachers; increase ing worked out. The First Education Sector in book user fees; establishment of revolving Adjustment Credit (EdSAC1), the subject of fund for replacement of books provided by the this review, is the second in a series that now project; elimination of food and boarding numbers seven projects. Initiated in 1986, its subsidies at secondary and tertiary levels; and objective was to provide budgetary support for agreement on recommendations for rational- the Ministry of Education (MoE) during the ization of university education. first three years of the reform program. Dur- ing this period, the new, three-year Junior Implementation Secondary School (JSS) cycle was to be phased in while the old middle school was phased out. 5. The Credit became effective in April, A third project, EdSAC2, supported the next 1987, and closed December 31, 1991, one year three year segment of the program when the behind the original schedule. The delay was new three-year Senior Secondary School (SSS) caused mainly by problems in meeting condi- cycle was phased in. tions pertaining to the tertiary sector but also -v - because of cumbersome Government procure- that the new system no longer includes an ment procedures that delayed the awarding of examination at the end of the primary grades contracts especially during the third year. All to screen out students unprepared for second- other conditions were met more or less as ary school. But the curriculum may be overly planned. ambitious even for the better students - and for many teachers as well. 6. The slow progress at the tertiary level resulted from opposition from students and 9. Many of these problems arose from the some faculty to cost reduction proposals, in speed with which the reforms were implement- particular the elimination of food and boarding ed. The factors mitigating against a more subsidies. In the end, a "compromise" was measured approach included unrealistic expec- reached in which only food subsidies were tations; pressure from a political leadership removed and loans were provided to students accustomed to issuing decrees without consid- so they could finance these extra costs. The ering implementation problems; concern to get loan scheme includes an innovative arrange- the new structure in place before political ment to ensure repayment; but it also includes opposition could be effectively mounted; and interest and repayment terms that reduce the the fact that more cautious voices had been present discounted value of these loans to discredited by corruption charges which result- nearly zero. The Bank showed considerable ed in the firing or retirement of 25 percent of understanding by not insisting on strict adher- senior secondary headmasters. The Bank only ence to the credit conditions. But it will have mildly resisted these pressures, in part, per- to continue pressing on this issue if remaining haps, because of its own preference for major subsidies are to be removed in a reasonable structural changes, as opposed to incremental period of time. adjustments. 7. The Government also experienced difficul- 10. Borrower and Bank performance were ty in maintaining a freeze on the number of generally quite good. Particularly noteworthy teaching staff in the Ghana Education Service is the Bank's decision to locate the task (GES). Since 1990, however, the agreed limits manager-an individual with a track record of have not been breached. field achievements-in the field. This action resulted in greater flexibility, rapid resolution 8. The structural changes were implemented of misunderstandings, greater realism in de- on schedule, one new junior secondary (JS) signing projects and substantial assistance to class beginning and one middle school (MS) the Borrower in complying with Bank procure- class ending each year. This is an impressive ment, disbursement and audit requirements. achievement considering all that had to be done in this brief period of time; but it did not Project Outcomes and Sustainability occur without problems that adversely affected learning achievements of at least the first wave 11. If the project is judged against proximate of students to pass through the new structure. outputs-curriculum changed, teaching and The new textbooks and teaching materials learning materials incorporated into the new were sometimes a few months late in arriving, curriculum delivered, teachers provided with in-service training programs were brief and not in-service training, changes in the structure of always timely; there were severe shortages of the system, cost-saving and sharing measures teachers for some of the newer subjects; and put in place, etc. -the outcome was certainly there were some indications that the new satisfactory. While there were slippages at the curriculum was too difficult for many students. tertiary level, so much was accomplished at This last problem is partially related to the fact -Vii - other levels that it would be hard to argue savings are sufficient to ensure sustain- otherwise. ability. 12. If the project is judged against the more 13. While these findings are worrisome, it is fundamental objectives of the reform program, the judgement of this audit that this particular the results are mixed. project could not have been expected to achieve the goals of the overall program -the (a) While enrollment at the secondary level focus of six other Bank-financed projects and has increased in satisfactory ways, primary substantial inputs by other donors. Since for enrollment is expanding less rapidly than the most part, this project accomplished its population, most likely because of the major, relevant objectives -i.e., provided the imposition of fees by local communities. inputs and delivered most of the policy changes promised-we conclude that project (b) Equity of access has been improved by performance was satisfactory. locating new schools in previously under- served areas and by eliminating the exam- 14. We also conclude that sustainability is ination that previously existed at the end likely despite doubts about the Government's of the primary cycle (thereby allowing stu- ability to finance the recurrent costs of the dents to continue into junior secondary reforms, since the Bank and other donors before facing a major screening examina- appear likely to continue providing support. tion). There are, however, two counter- But if external support should diminish-as it vailing trends which make the net effect might if learning achievements do not difficult to judge. significantly improve -the Government would be hard pressed to fill the gap. (c) Most serious, learning outcomes appear to be quite poor. Evidence for this comes Findings and Lessons from a variety of sources including exam- ination results. It seems to be explained 15. Three specific lessons emerge from this by reports indicating that learning mate- project experience: rials, even when available, are often not used, that actual student-teacher contact * Field representation -provided an appro- hours are very low (because of absence of priate person is available-can be very teachers and/or students from class), that effective and useful and should be strongly inservice teacher training was inadequate, encouraged in sectors such as education that parts of the new curriculum are over- where there are few blueprints that can be ly ambitious, and that within-school su- applied. pervision and discipline of teachers is weak. * The repayment mechanism built into the student loan program should be consider- (d) While EdSAC1 has been responsible for a ed for use elsewhere. Considering the number of cost-reduction and cost-sharing fact that most student loan schemes in measures, the reform program has resulted developing countries fail because of col- in upward pressures on costs as well - be- lection problems, this is a very promising cause of vocationalization of the curricu- innovation. lum, replacement of untrained with train- ed teachers and upgrading of materials * The "pavilion" style of architecture used and supplies. It is not clear that the net for basic education buildings is low cost, could be adapted to maximize use of local - vii - materials, and is simple enough for un- the average school to absorb and implement trained community members to help con- the changes. If correct, one can argue that the struct. reforms should not have been implemented so rapidly on a national scale, before testing the 16. In addition, an important general lesson to new curriculum and textbooks and determining derive from this project experience is humility. what are the bottlenecks to progress. Second, EdSAC, along with other Bank and donor pro- the system of rewards and punishments for jects, provided nearly all the inputs thought at performance within which teachers operate is the time to be necessary for the proper opera- very weak in Ghana. Until this changes - until tion of a school system, it included reasonable there is more discipline in the system - learning conditions to ensure their appropriate use, outcomes are unlikely to improve significantly. implementation was satisfactory, and owner- ship was strong. That all this has so far 18. If these hypotheses are correct, the proved inadequate may mean that we simply principal constraint on progress is no longer do not know how to reform an education sys- foreign exchange, as it appeared to have been tem, particularly one close to being moribund. in 1985-86, but lack of solutions to these vex- ing problems. Practical solutions will have to 17. That said, two hypotheses can be suggest- be developed and tested at the local level prior ed. First, the curriculum reforms have been to "mainstreaming" reforms; and cost recovery imposed on the school system from above with will need to be tackled more decisively to an inadequate knowledge of the capacity of ensure replicability and sustainability. 1. A simple, low-cost type of building for schools developed for Ghana. -1- PERFORMANCE AUDIT REPORT GHANA FIRST EDUCATION SECTOR ADJUSTMENT CREDIT (CREDIT 1744-GH) 1. BACKGROUND 1.1 By the time of independence in 1957, education institutions with an international reputation for excellence had been established in Ghana at primary, secondary, and tertiary levels. They provided a small number of carefully selected students with an essentially English-style academic education (the medium of instruction was English after the first two years and the curriculum prepared students for the 0 and A level examinations), the principal difference being that most students required more years to complete the primary and secondary levels.y Nearly all these institutions were fully funded by the Government, were located in the urban south, and, at secondary and tertiary levels, were residential. 1.2 Little attention was paid to the provision of basic education for the rural masses. During the First Republic, which ended in 1966, efforts were made to correct this imbalance, and enrollment, particularly at primary level, expanded rapidly, reaching a primary gross enrollment rate of 74 percent by the mid 1970s. But from the early 1970s until the mid 1980s when the Economic Recovery Program started, that part of the education system was largely neglected. Between 1975 and 1983, GNP per capita in constant prices declined by 23 percent, the education budget as a percent of GNP fell from 6.4 percent to one percent, and an increasing proportion of resources were devoted to the few high quality institutions. 1.3 The consequences for the rest of the education system were devastating. By 1984, the situation had reached a point where little learning was taking place, apart from the few privileged institutions and a limited amount of private tutoring. There were virtually no books or supplies to be found, the last imported purchases having been made in the late 1970s; salaries had declined to the point that many better trained teachers had emigrated, their places being taken by untrained teachers who devoted large portions of their time to secondary occupations; there was no inspection or supervision; teaching hours and days per year were little effective amongst the lowest in the world; and primary enrollment rates dropped to the level of the 1950s as parents withdrew their children. The education system was also disrupted in the 1983-85 period by a Government-wide anti-corruption campaign which resulted in the firing of one-fourth of the head teachers of senior secondary schools. J The system provided for a six-year primary course, a four-year middle level course, a five-year lower secondary course, and a two-year upper secondary course. An examination at the end of the primary years determined whether students could proceed directly to lower secondary or had to go first to one or more years of middle school. A second major examination at the end of upper secondary determined whether students could proceed to college. These examinations were, and those that have replaced them in the new structure still are--administered by the West African Examinations Council. -2- 1.4 Other problems identified prior to the initiation of the First Education Sector Adjustment Credit (EdSAC1) included misallocation of resources, duplication of programs at the university level, and weak, piecemeal planning, budgeting, monitoring and evaluation'. 1.5 Numerous attempts had been made to reform this system, some dating back to colonial days; but because of resistance from groups benefitting from the status quo, none, before 1985, were seriously implemented. The Dzobo Commission Report, accepted by Government in 1974, came closest; but because of lack of funds, resistance from the education establishment, and unrealistic goals (e.g., it called for the establishment of 4500 high quality senior secondary schools, along the lines of the few first rate, expensive institutions already existing), the decision was eventually made (in 1978) to establish 118 secondary schools using the proposed curriculum on a pilot basis. 1.6 By the early 1980s, however, the Rawlings Government was eager to develop populist programs as an offset to the austerity imposed by the Economic Reform Program. The parlous state of the education system made everyone agree that something had to be done. Donors had signaled their interest in providing funds for the social sectors. And a newly appointed Education Commission had put forward specific proposals for implementing a modified version of the Dzobo Commission report on a national scale. Their recommendations were accepted and publicly announced on October 15, 1986. 1.7 Opposition to the reform came mainly from academics and the Ghana Education Service (GES) whose criticisms focused more on the haste by which the reform was implemented than on its objectives.- Substantive criticisms of the vocationalization proposals were also voiced;5 in particular, a 1985 education sector review raised doubts about the wisdom of proceeding.y But given the enthusiasm and politics of the day, these reservations were largely ignoredy 2. PREVIOUS BANK INVOLVEMENT 2.1 Though the Bank started supporting Ghana's development efforts in 1962, it was not until 1986 that the first credit was provided for the education sector. In 1971, preparations for a vocational education project with a heavy emphasis on teacher training and agriculture reached the 2 Project Completion Report, para 4-8. / This was also signalled as a risk in Presideu's Report for EdSAC1. 4/ In 1985, for example, the Curriculum Research and Development Division of the GES evaluated the pilot secondary schools and concluded that the curricula was over-vocationalized and diversified. / Ghana Educadon Sector Review and Proposed Invesment Strateg, August 9, 1985. The report concluded that: (a) the feasibility of the then-proposed reform was dubious; (b) there was no reason to eliminate the Middle school and recommended that the JSS program be postponed indefinitely- (c) the proposed curriculum was ambitions and that the vocational component was non- functional; and (d) quality and rehabilitation should have priority over eapansion. 61 During the 1982-85 period, the Government became increasingly dissatisfied with the GES and gradually reinforced the Ministry of Education (MoE) at the expense of the GES, invoking (with good cause) the latter's resistance to change, declining effectiveness, and corruption. -3- negotiating stage but were not followed through after the Busia Government which had proposed the project was overthrown.2' 2.2 Thereafter, no serious dialogue about the Government's plans for the education sector and how the Bank might be of assistance took place until after the Economic Recovery Program was initiated in 1984. While this dialogue was under way, the Bank agreed to provide US$5 million for the emergency purchase, mainly, of basic school supplies (pencils, chalk, text books, and exercise books for primary and secondary schools, and some journals and laboratory equipment and supplies for universities). The main purpose of the resulting credit--the Health and Education Rehabilitation Credit for US$15.0 million (approved in 1986 and closed in 1991)--was to prevent further deterioration until the details of support for the recovery program could be worked out. 2.3 The Government's initial request was for funds to expand the education system, to change its structure, and to implement on a nationwide basis a curriculum similar to that used in the pilot secondary schools. The Bank had no problems with the broad outlines of this proposal, but raised two main points. 2.4 First, the Bank argued that the Government's vocationalization goal--to provide students with the skills with which to earn a living--was not feasible at the Junior Secondary School (JSS) level. In the typical JSS, which included three teachers and a headmaster, teachers could not afford to specialize to the degree necessary to provide a true pre-vocational program. Instead, the Bank proposed and eventually persuaded the Government to accept a prevocational program at the JSS level, essentially a program limited to familiarizing students with various tools. 2.5 Second, the Government's initial proposal contained few cost-sharing or cost-containment elements. The Bank persuaded the Government that such elements were needed for longer-term financial sustainability if the school system was to expand, vocationalize and improve quality. The result was an agreement to reduce and eventually eliminate boarding and feeding subsidies, to introduce fees for textbooks and other student supplies and establish revolving funds to finance future purchases, and to restrict or reduce the number of teachers and non-teaching staff. 2.6 To accomplish the goals of this project, which had more to do with policy changes and recurrent costs than with capital costs, the Bank developed a new lending instrument. Given the title, Education Sector Adjustment Credit (EdSAC1, 1987-1991), this instrument had two principal characteristics. First, the funds were to be released in three tranches upon the achievement by the Government of pre-agreed policy changes. Second, the funds would be disbursed against a positive list based on needs of the education sector, rather than being provided as general balance of payments support. This same instrument was used for a follow-on project, EdSAC2, but not for subsequent projects, partly because of objections by the Bank's Legal Department that adjustment credits were not permitted to fund local costs. Subsequent operations have taken the form of typical 2 It is interesting to observe how the education system was characterized and the nature of the project proposed at that time. The document starts off by noting that the education system was of good quality and needed only limited and selective expansion to better meet the economy's manpower needs. It also notes that while it took the majority of students an unduly long period of time to complete 0 and A levels, the Government had announced its intention to phase out the middle school. The project would have consolidated and upgraded primary and secondary teacher training institutions, expanded and upgraded vocational and technical education institutions, and devoted special attention to the education needs of the agricultural sector. It is unfortunate that it was not implemented, since it was well suited to the needs of that time and might have dampened later demands for a more radical vocationalization of the system. -4- investment projects in the sense that they are not tranched; but they still have significant policy and recurrent cost elements. (See Table 2 for basic data and status on all Bank-funded education projects in Ghana). 2.7 A sector study and a public expenditure review undertaken in 1985 were used to develop an estimate of the resource requirements for rehabilitating the system. This estimate, along with a Government paper outlining its proposed reform program, was presented to a special donors' conference in September, 1986. The Credit, approved at the end of 1986 and signed in March, 1987, provided resources equivalent to US$34.5 million. In addition, the Government received $7.5 million in grants and $4.4 million in a concessional loan through parallel and co-financing arrangements. These funds were to meet the financial gap of the first three years (1987-89) of the six-year transition to the new structure and related reforms. A picture of how these funds were allocated is presented in Table 3. 3. THE REFORM PROGRAM AND EdSAC1 3.1 The reform program called for the establishment of a basic education program of 9 years--6 primary and 3 junior secondary--to be followed by 3 senior secondary years, before entering higher level institutions. As in the past, progression would be automatic through the first 9 years. Examinations at that point and again at the end of senior secondary would determine whether students could proceed to the next level. An increasing proportion of available resources would be concentrated on basic education, the goal of which would be to provide children with literacy skills in their own language, a second Ghanaian language and English; with modern farming skills; with familiarity in using tools; with practical mathematical skills; and with positive attitudes toward work and national developmentY Cost-sharing and cost-reduction measures were to be introduced so as to achieve financial sustainability as soon as possible. 3.2 EdSAC1 was to provide budgetary support for the Ministry of Education (MoE) during the first three years of the reform program when the three JSS grades were phased in and the middle school was phased out. Table 1 presents a list of the specific actions agreed to be undertaken in conjunction with various tranche releases. The funds were to be allocated first to categories requiring foreign exchange and then to categories of local expenditure based on mutually agreed annual expenditure programs. In the end, approximately half were used for fixed assets (e.g., technical equipment for JSS and SSS) and inventories (e.g., textbooks, teacher guides and school supplies) and half for operating costs, technical assistance, and other expenses (e.g., Curriculum Research and Development Division, of the Project Management Unit, inservice training, rehabilitation of secondary schools, and school pavillion installation). About 38 percent of the credit was used to finance local costs. 8/ World Bank, "Basic Education for Self-Employment and Rural Development", Sector Report, 1989 p. 2. 2/ In 1994, this structure will undergo an additional modification: a fourth year will be added to the typical 3-year university program. This addition is in recognition of the fact that students graduating from SSS do not have the equivalent of A levels, which has hitherto been required for entry into the university. -5- 4. PROJECT IMPLEMENTATION 4.1 The Credit became effective in April, 1987, and closed December 31, 1991, one year behind original schedule. The delay was caused mainly by problems in meeting conditions pertaining to the tertiary sector but also because of Government procurement procedures that delayed the awarding of contracts especially during the third year. All other conditions were met more or less as planned (see Table 1 which compares tranche release conditions with accomplishments) and the credit was fully disbursed. 4.2 Responsibility for procurement, training, logistics and other implementation functions was assigned to a newly created Project Management Unit (PMU) reporting to the Deputy Secretary for School Education in the MoE. This arrangement effectively bypassed the Ghana Education Service (GES), the agency responsible for the day-to-day operations of the sector, which had been greatly weakened by indictments for corruption and loss of staff. It led to resentment and opposition on the part of GES staff that had been bypassed and some loss of useful advice and experience. At the time, however, the arrangement was believed to be necessary in order to ensure that the reform program was not sabotaged. 4.3 On its side, the Bank organized itself somewhat differently from the usual arrangement by locating the task manager--an individual with a track record of practical achievements--in the field. This action, plus the fact that he has remained with this project throughout its life, had a very positive effect on implementation. It resulted in more rapid resolution of misunderstandings, flexibility in the application of regulations and general principles, realism in designing projects and substantial assistance to the Borrower in complying with Bank procurement, disbursement and audit requirements. His extended tenure does not seem to have resulted in any loss of credibility or effectiveness. 4.4 The slow progress in preparing the University Rationalization Study and plan of action--which was responsible for delays in release of the second and third tranches--resulted from intense opposition from students and some faculty to proposals to reduce costs, in particular to eliminate food and boarding subsidies. In the end, a "compromise" was reached in which, for the present, only food subsidies would be removed and loans would be provided to students so they could finance these extra costs. The loan scheme is ingenious in that it ensures almost 100 percent repayment by requiring that the first years of a student's social security retirement income be used for this purpose or that repayment be guaranteed by someone with ten years contributions into the scheme (who cannot withdraw any contributions until the student has repaid). But it involves very heavy subsidies (three percent interest is charged when secured loans from commercial banks are paying 26-30 percent). 4.5 The Government's cautious approach in dealing with students stems from a history of disruptions including the fall of the Busia Government in 1972 and a student strike that closed the universities for the 1983 academic year. The universities were also closed for several months in 1988 and 1993. The Bank displayed considerable sensitivity to the political implications by not insisting on strict adherence to the credit conditions. But it will have to continue pressing on this issue if remaining subsidies are to be removed in a reasonable period of time. -6- 4.6 The Government also experienced difficulty in maintaining a freeze on the number of teaching staff in the GES. As of August, 1987, GES employment was about 154,100. In February, 1988, it had fallen to 151,600 because of retrenchment of non-teaching staff. But by the end of 1988, despite an official freeze, employment had increased to 158,100. When this came to light, the Government summarily fired large numbers of staff, reducing the total to 146,000 by mid 1990. Since then, agreed limits have not been breached. 4.7 The structural changes were implemented on schedule, one new JS class beginning and one MS class ending each year. This is an impressive achievement considering all that had to be done in this brief period of time; but it did not occur without problems that adversely affected learning achievements of at least the first wave of students to pass through the new structure. Textbooks and teaching materials embodying the new curricula for these classes were available nearly on time--at most, with only a few months' delay--but without time for pretesting. All teachers were provided with brief inservice orientation/training programs, though not always before they had to begin teaching the new subjects. Severe shortages of teachers for some of the newer subjects arose. And students complained that the new materials were too hard for them, in part because of their poor mastery of English. 4.8 Part of the students' problems with the materials stems from the fact that poorer students, who had previously been screened out of junior/middle school by the Common Entrance Examination (CEE), were now permitted to continue without an exam. But there is also evidence to suggest that the new curriculum was over-ambitious even for other students and for many of the teachers as well. To cope with these problems, teachers frequently departed from the prescribed JSS curriculum to provide remedial materials in basic subjects. 4.9 Many of these problems arose from the speed with which the reforms were implemented. The factors mitigating against a more measured approach included unrealistic expectations, pressure from the political leadership who were accustomed to issuing decrees without considering implementation problems, concern to get the new structure in place before political opposition could be effectively mounted, and the fact that many more cautious voices were discredited by corruption charges which resulted in the firing or retirement of 25 percent of senior secondary teachers. The Bank only mildly resisted these pressures, in part, perhaps, because of its own preference for decisive structural, as opposed to incremental, changes. 5. PROJECT OUTCOMES AND SUSTAINABILITY 5.1 Did EdSAC1 achieve its objectives? Are its achievements sustainable? The answer to these questions depends on how the objectives are defined: in terms of inputs and intermediate outputs, or in terms of the more fundamental development impact of the education reform program. 5.2 Defining its objectives in terms of intermediate outputs--curriculum changed, teaching and learning materials incorporating the new curriculum delivered, teachers provided with inservice training, changes in the structure of the system, cost-saving and sharing measures put in place, etc.-- there is no question that the outcome has been satisfactory. While there were some slippages at the tertiary level, so much has been accomplished at other levels that it would be hard to argue otherwise. This should be clear from Table 1 and the discussion of the previous section. -7- 5.3 Defining the objectives in terms of more fundamental issues--increases in enrollment, improvements in equity, learning achievements, and cost reductions sufficient to achieve financial sustainability--the results are mixed.!-' (1) While enrollment at the secondary level has increased in satisfactory ways, primary enrollment is expanding less rapidly than population (see Table 4). The most likely reason for this is increased fees imposed by local communities as they have acquired more power over the school districts in the course of decentralization of responsibility.!' (2) Equity of access has been improved by locating new schools in previously underserved areas (for regional data see Table 5), and by eliminating the examination that previously existed at the end of the primary cycle (thereby allowing students to continue into junior secondary school before facing a major screening examination), and by ensuring that 30 percent of intakes to SSS come from the immediate vicinity even if that means taking them from an elite school. There are, however, two countervailing trends. First, there has been a rapid growth in private primary schools. For the rich who can afford the fees, these schools substantially increase the probability of their children getting into good senior secondary and tertiary schools, thereby strengthening the already high correlation between educational attainment and income. Second, the decentralization of responsibility for school management and the cost-sharing measures so far introduced are resulting in increased fees at primary and secondary levels that hurt the poor more than the rich.2 No study has been undertaken to determine the net effect of these various trends. (3) Most serious, learning outcomes appear to be quite poor. Evidence for this comes from several surveys!' and from anecdotal information. It is also consistent with information (including circuit monitoring reports) on within-school activities indicating that learning materials, even when available, are often not used, that actual student- teacher contact hours are very low (because of absence of teachers and/or students from class), that in-service teacher training (to orient teachers to the new curriculum) was inadequate, that parts of the new curriculum are overly ambitious (e.g., classes getting through less than half of the syllabus by the end of the allotted time), and that within- school supervision and discipline of teachers is weak. 10/ This section summarizes materials presented in more detail in OED. Ghana'sEducadon Reform Progam, Bank Inputs and Proess to Date, 1994. 1l/ In 1988 the Government initiated a policy of decentralization that will eventually move many functions from the center to the district level. j1 This has not yet happened at tertiary level because only food subsidies have so far been eliminated and a heavily subsidized loan scheme has been introduced simultaneously. 13J The Ghana Living Standards Study which conducted surveys in 1988/9 (P. Glewwe and H. Jacoby, Estimating the Determinants of Coenitive Achievements in Low-Income Countries: The Case of Ghana, LSMS Working Paper No. 91, 1992), the Criterion Reference Test (CRT) administered to primary school graduates as pail of the USAID-funded primary education project in 1990, and a study by Ruby Avotri, "Comparative Analysis of the Traditional and the Integrated Curricula in Ghanaian Secondary Schools", Murdoch University, 1993. The results of a second round of the CRT, just completed, should be particularly interesting since it should help decide whether the first round reflected teething problems of the new system or something more fundamental. -8- (4) While EdSAC1 has been responsible for a number of cost-reduction and cost-sharing measures, the reform program has resulted in upward pressures on costs as well-- because of vocationalization of the curriculum, replacement of untrained with trained teachers and upgrading of materials and supplies. It is not clear that the savings are sufficient to ensure sustainability. While the reduction in the number of years required to complete pre-tertiary cycles has reduced costs, these savings are less than originally anticipated in part because of a recent decision to add a fourth year at tertiary level. This has been done to compensate for the expectation (so far initiated) that students completing the secondary cycle are less well- prepared for college than they were under the old system. * Fees collected for textbook and other student supplies are being accumulated in revolving funds to replace donor-provided materials but are not adequate for the purpose. Not all parents have been paying the fees, the fees are not keeping up with inflation, there are leakages due to fraud and embezzlement at the district level (according to audit reports), and recently, for bureaucratic reasons, the funds have not been invested at commercially guaranteed rates of interest. * Room and board subsidies at secondary level have been eliminated but not at tertiary level if the subsidy element in student loans is taken into account. * While substantial progress has been made to contain growth of GES and university staffs, the constant pressures to increase employment is likely to grow over time. Enrollment into teacher training colleges has been increased to allow for replacement of untrained teachers but may now be higher than what is needed for that purpose (at current ratio of growth in primary enrollments). And the rapid growth in SSS enrollment is putting pressure on universities to admit larger numbers, which will soon increase pressure to expand staff. A detailed study of this situation is needed to determine how these various trends might net out over time. While the Bank undertook some work in this direction in preparation for EdSAC1--which indicated that the unit costs would increase during implementation of the reform program but should come down thereafter - only one study of this issues has been undertaken since. The situation needs careful and continuous monitoring, particularly in light of the fact that education expenditures already constitute close to 40 percent of the central Government's recurrent budget. 5.4 So far as sustainability is concerned, there can be no doubt about the Government's continued commitment to the reform program. Since EdSAC1 ended, the structural changes at senior secondary level have been implemented, plans have been laid to extend the reforms into the tertiary level, plans to cope with the poor performance of teachers at primary level have been developed, and these and other plans have been backed by heavy Bank and donor support (for Bank-funded projects, see Table 2). In general, institutional capacities have improved--there is, for example, a better working relationship between the MoE and the GES and some of the functions performed by the PMU have been returned to the GES. However, the Planning, Budgeting, Monitoring and Evaluation Office, created with the help of a UNDP technical assistance project (which included some Bank funds) to -9- consolidate and improve these managerial functions, remains weak. The only major doubt is whether financial sustainability is being achieved. While the previous paragraphs raise serious questions, a detailed study will have to be undertaken to determine how various divergent trends are balancing out. 5.5 How, then, should the questions posed at the outset of this section be answered? EdSAC1 is the second in a series of Bank-funded projects designed to implement the education reform program. Others to date include EdSAC2, and projects focused on specific subsectors (community secondary schools, non formal education, tertiary education and primary education); and there are more to come in the future, probably a second non-formal education project, a vocational education project, and a second tertiary project. It could not have been expected to achieve the goals of the overall program. Thus, the proper question to ask is whether it accomplished its more limited objectives--provided the inputs and supported the policy changes it promised to deliver. Since for the most part it did, we conclude that the project outcome was satisfactory. 5.6 We also conclude that sustainability is likely despite doubts about the Government's ability to finance the recurrent costs of the reforms. First, the Government has demonstrated its commitment to the education sector by allocating large shares of its recurrent budget to education - the most recent figure is 40.7 percent. Second, the Bank and other donors appear likely to continue providing support. But if external support should diminish--as it might if learning achievements do not significantly improve--the Government would be hard pressed to fill the gap. Hence the need to focus on cost recovery in current and future operations. 6. CONCLUSIONS 6.1 A number of lessons can be learned from this experience, for example: * Field representation--provided an appropriate person is available--can be very useful and should be strongly encouraged in sectors such as education where there are few blueprints that can be applied. * The repayment mechanism built into the student loan program should be considered for use elsewhere. Considering the fact that most student loan schemes in developing countries fail because of collection problems, this is a very promising innovation. * The "pavilion" style of architecture used for basic education buildings is low cost, could be adapted to maximize use of local materials, and is simple enough for untrained community members to help with construction. 6.2 However, the most important lesson to derive from this experience is humility. EdSAC, along with other Bank and donor projects, provided nearly all the inputs thought at the time to be necessary for the proper operation of a school system, it included reasonable conditions to ensure 14 See the review of this program in Ghana Education Reform Progran Bank Inputs and Progress to Date, in OEDs Ghana County Assistance Review, 1994 - 10 - their appropriate use, implementation was satisfactory, and ownership was strong. That all this has so far proved inadequate may mean that we simply do not know how to reform an education system, particularly one close to being moribund. 6.3 That said, two hypotheses can be suggested. The first is that the curriculum reforms have been imposed on the school system from above with an inadequate knowledge of the capacity of the average school to absorb and implement the changes. If correct, one can argue that the reforms should not have been implemented so rapidly, that some time should have been taken to learn about the capacity of the school system, to involve teachers in average schools in the process of developing the new curriculum, to test the new curriculum and textbooks before applying them wholesale, and to more properly train teachers in their use. For example, something like the criterion reference test should have been administered years earlier. Had such information been available at the time, the reform program might have taken a different shape--for example, it might have started at the primary rather than at the secondary level. 6.4 In 1986, there was already a literature reviewing efforts to implement ambitious reform programs of this type indicating that they seldom if ever work well, and suggesting that there is no real alternative to muddling through with incremental changes". While there were good reasons at the time for plunging ahead on a crash basis, in the light of what we know today about learning outcomes, those reasons should have been given less weight and the voices of doubters more weight. Care should be taken not to repeat this practice in future projects. Reforms need to be piloted, pioneered and evaluated before being applied on a large scale. 6.5 The second hypothesis is that the system of rewards and punishments for performance within which teachers operate is very weak in Ghana. It is difficult to fire a teacher for chronic absence or drunkenness, let alone for being a poor teacher. Until this changes--until there is more discipline in the system--learning outcomes are unlikely to improve significantly.Li 6.6 If these hypotheses are correct, the principal constraint on progress is no longer foreign exchange, as it appeared to have been in 1985-86, but lack of solutions to these vexing problems. Practical solutions will have to be developed and tested at the local level prior to "mainstreaming" reforms; and cost recovery will need to be tackled more decisively to ensure replicability and sustainability. 15J/ M. Carnoy & H. Levin, The Limits of Educational Reform, New York, David McKay Co., 1976; R. Sack, "A Typology of Educational Reforms."Prospects 11 No 1:39-53, 1981; J. Simmons, et.a., 1979. "Lessons from Educational Reform", The World Bank, Policy Planning Division, 1979; H. Weiler, "Lgalization and Educational Policy." Comparative Education Review 27, No2:259-277, 1983. I!y This seems to be the premise behind the Bank-funded Primary School Development Project. It attempts to inject more discipline by encouraging local communities' ownership/responsibility for their schools and by strengthening headteacher quality and supervision authority over teachers. The means employed to do so, however, seem excessively tentative and gentle given the severity of the problem. See discussion in the forthcoming Ghana: County Assitance Review, Operations Evaluation Department, Washington, D.C. TABLE 1: AGREED ACTIONS AND TRANCHE RELEASE CONDITIONS Actions taken before Second Tranche Conditions Status Third Tranche Conditions Status First Tranche (Tranche review March 1988) (Tranche Review - September 1989) Plans for the oompletion/rehabilitation Agreement betwee Bonower and Agreement reached 1. Agreement (a) on Borrower's Agreement readed f facilities so that teacher training IDA on (a) Borower's diraft budget draft budget for FY 1989 for public mrollments can be increased by 600 for FY88 for public expenditures on education expenditures and (b) on a 18,500 have beca prepared. A education and (b) the use of the use of the proceeds of the credit iudy on task analyses of teachers, rocees of cedit to finance part o finance it nd alternative methods for their olthis expenditure. raining has been designed and is vady to start blic announcement made by the Replacement offirst class of All first year classes of Middle Schools 2. All second year Middle School Second year Middle School phased PNDC that the new structure will be Middle School by Class I of the JSS. phased out and replaced by JSSI lasses to have been phased out and out. 4,798 JSSs in existence, and introduced nationwide starting with where numbers are adequate. Thus eplaced by JSS-2. Termination of intake into old Secondary Schools 'rade I in 1987. 4,418 JSSs came into operation in intake into old secondary schools from Classes 6 and 7 stopped. September 1987. from Grades 6 and 7. audit of all staff on the payroll Completion of Audit of staff on Audit of staff in second cycle Announcement that all untrained Formal announcement made on ofMOEDC, its educational institutions the payroll of the Ministry. institutions completed in June 1986. teachers will need to have completed September 14, 1989 and plans being and the universities to check whether Information also collected on all first formal training by 1995 to remain made to provide such training. hey actually exist has started and cycle staffduring school mapping enployed. i already cornpleted for second cycle exercise. trstitutions. Total teadher posts by level have been frozen at their 1986 leveL and the recruitment of untrained banined. xisting freeze in GES and the *ntinuation of freeze on the Freeze in effect and being enforced ontinued freeze on teacher posts The freeze was breaded and GES niverasitics continued on any new nunber of teacher posts and on the by adhering to a one in one out and on reuitmnat of untrained employment raew by 6,457 between ritment or replacment of staff rcruitment of untrained teachers. policy. a Febmary and Deomber 1988. circment apart fron those being However, draconian measures were vdeployed. Categoriesafstaffthat taken to ensure compliance so that iould be (a) retired, (b) redeployed through 1991 OES staffing fluctuated being idesified as a part ofthe around 146,000 well below the upper audit .limit of 153,000 agreed upon between IDA and Governmert TABLE I (Continued) p.2 Actions taken before Second Tranche Conditions Status Third Tranche Conditions Status First Tranche (Tranche review March 1988) (Tranche Review - September 1989) All exercise books and writing materials Increase of the level of book user Not implemented at time of tranche Increase in level of book user fees Book user fee increased from 2.4 to rovided by the Bank through Credit fees for secondary students. review because of delay in for secondary students sufficient for 1,500 oedis. This is total price of 1653-OH will be sold at cost price, and procurement of bokAs. Later enforced recovery. books. he proceeds deposited in a special in September 1987. &oun. Tertiary level students Increase in level of book user fees This was done in Septeriber 1987. charged the full cost of books, and (or JSS students. Current cost covers all but cost of loam provided to needy students paper which is provided through grant guaranteed by guardians) by banks, aid Ihe feeding and boarding fee at Reduction of food and boarding Boarding fees were increased from 45 Elimination of remaining half of All feeding subsidies removed secondary level institutions has been subsidies at all secondary and tertiary cedis to 100 cedis per day effective boarding and feeding subsidies at all nceased by 50r/ Th level of the full level institutions by 50 percent January 1988 with no change in the scondary and tertiary level csts of feeding and boarding students boarding subsidy of 10 cedis, thus institutions. at secondary and tertiary level effecting an increase in parent-borne insututions including food, cooks, costs by 50 percent. At university leaning and other staff as been level feeding subsidies have been kept anTounced h he phasing out of all constant, reducing their real value since bsidies from secondary and teriary 1987 by 40 percent- evel imtitutions has also been The higher education rationaization Agreement between Borrower and IDA Draft study submitted and under Government to submit a study on Study completed March 1989. and cost study has started. the recommendations for the discussion. However judgement made university rationalization with Agreed upon plan of action was ionalization of University education, to allow more time for report to be recommendations on how to cut costs completed in December 1989. considered in detail. Appropriate and soon after agreement with IDA is amendments were made to the reached, implement those Development Credit Agreement. -conunendations acceptable to IDA. Agreement for the reduction of By end of 1987, 5,721 excess non- Iovemment to reduce the numbers 8.500 non-teaching staff retreched second cycle non teaching staff; teaching personnel from second cycle f non-teaching staff in the GES and i a contmuing proces satisfactory cntinuation of the freeze on the schools had been retrenched. This e umversities. to IDA. number of non teaching staff of the was the first major retrenchment of GES and in the Universities and in the PNDC Government University he recruitment ofnew staff staffing issues being considered within context of rationalization study. revised JSS syllabus with a much mplified and inexpensive structure Sbeen completed according to nutually agreed guidelines. Euipment lists for simple hand tools o be provided for JSS students has 3een prepared. Table 2. Bank Funded Education Projects in Ghana Name of Project Commitment Percent Approval Closing (Mill US$) Disbursedal Date Date Health & Education Rehab. CR-1653-GH 5.0 b/ 100.00 01/23/86 12/30/91 Education Sector Adjustmt I CR-1744-GH 35.0 100.00 12/09/86 12/30/91 Education Sector Adjustmt H CR-2140-GH 50.0 72.00 05/24/90 12/30/94 Community Secondary Schools CR-2278-GH 15.0 80.03 06/25/91 12/31/94 Literacy and Functl Skills CR-2349-GH 17.0 23.50 03/26/92 12/31/95 Tertiary education CR-2428-GH 45.0 7.10 10/27/92 12/31/97 Primary School Development CR-2508-GH 65.1 0.00 06/10/93 12/31/97 Total 231.1 a/ As ofDecember 31, 1993. b/ Education component only. The whole project disbursed USS15.0 million. - 14 - Table 3. Allocation of Proceeds In SDR In US$ Category of Expenditures Original Actual Balance Balancell Allocation Disbursements' 1-A Goods, Works and Services (1002 Foreign) 6,921,030 2,181,366 4,739,664 6,190,001 1-B Goods, Works and Services (1002 Local) 4,275,964 1,357,207 2,918,756 3,811,896 Subtotal 1 11,196,994 3,538,573 7,658,420 10,001,897 2-A Goods, Works and Services (1002 Foreign) 5,106,002 3,382,460 1,723,542 2,250,946 2-B Goods, Works and Services (100% Local) 3,308,740 3,751,516 (442,776) (578,266) Subtotal 2 8,414,742 7,133,976 1,280,766 1,672,680 3-A Goods, Works and Services (100%Foreign) 4,263,675 8,768,352 (4,504,677) (5,883,108) 3-B Goods, Works and Services (1002 Local) 2,930,384 6,551,490 (3,621,106) (4,729,164) Subtotal 3 7,194,059 15,319,842 (8,125,782) (10,612,272) 4 Refinancing PPF (P380-GH) 260,000 125,834 134,166 175,221 VEH-SAL: Vehicles and Maintenance/ 1,434,205 2,040,319 (606,114) (791,585) Incremental Salaries of Teachers (threshold of SDR 4.5 million) Special Account (Ghana Commercial Bank) 341,456 (341,456) (445,941) Total 28,500,000 28,500,000 0 0 I/ Based on Loan Database of September 17, 1992. 2/ At exchange rate of US$1.306 - 1 SDR. Table 4. Basic Education Access Indicators - 1980/81 To 1990/91 1980/81 1981/82 1982/83 1983/84 19845 1985/86 1986/87 1987/88 1988/89 1989/90 1990/91 1991/92 Grade I enrollmnta 27,851 $0*514. 3163 32$ 332,Î2»:0S45 343,357 350,105 363.689 38,951 372,876 %dugefrompreviousyea 3.9% 2.3% 2.8% 2.0% 0.6% 1.9% 0.8% 2.0% 3.9% 6.9% -4.1% Primary achool a~ ratio (Grade I rolmnts as % population age 6) Total 81.8% 83.8% 84.4% 85.4% 85.3% 35.1% 85.4% 33.5% 32.6% 33.2% 86.4% 79.6% Girds 75.7% 77.0% 77.4% 73.2% 73.5% 77.8% 78.5% 77.0% 76.5% 78.6% 80.7% 75.4% Primay~~cool enolmns 1377,734 1434573 1,482,090 1,522,094 1,552.895 1,574.927 1,610,012 1,625,137 1,598,443 1,703,074 1,303,148 1,796,490 %dangefmpreviouyear 4.1% 3.3% 2.7% 2.0% 1.4% 2.% 0.9% -1.6% 6.5% 5.9% -0.4% GrsEmollmegtRatio Total 76.2% 76.8% 77.0% 767% 71.5% 70.8% 67.5% 66.1% 68.2% 71.6% 73.5% 70.6% Girb 63.3% 68.8% 691% 698% 63.7% 62.4% 58.9% 58.5% 61.7% 64.3% 66.3% 64.3% o"u urold in Primauhools 611328 636610 659016 685431 698337 699730 716997 725462 711132 764064 311271 816505 % chaefrompreviousyear 4.1% 3 5% 4.0% 1.9% 0.2% 2.5% 1.2% -2.0% 7.4% 6.2% 0.6% Middle/JSschool enrollment 545780 568662 510309 594680 605241 611872 622773 610004 608690 625018 569343 591301 % dange from previous year 4.2% 2.1% 2.4% 1.8% 1.1% 1.3% -2.1% -0.2% 2.7% -8.9% 3.9% Girs rolled in Middl/JSS 219372 229142 213942 240246 244673 249102 256051 251834 251446 258188 232235 243038 % change from previous yar 4.5% 2.1% 2.7% 1.8% 1.8% 23% -1.6% -0.2% 2.7% -10.1% 4.7% Tranltion rate from Primary 6 to Middle I or JSS I: Total 93.3% 91.9% 91.4% 99.7% 38.2% 88.1% 83.3% 87.5% 97.0% 98.1% 94.7% Girb 92.2% 39.9% 88.6% 77.7% 77.2% 85.3% 30.6% 84.2% 98.0% 96.8% 94.0% Average ai growth for the periods: 1980/81 - 1986/87 1987/88 - 1991/92 Gradeenrolmnat 2,3% 2.1% Primary uc nollments 2.6% 2.5% Girk enrolled i Primary dool 2.7% 3.0% MiddeJSS c enrollm~t 2,2% -0.8% Girs erolled in Midde/JSS 24% -0.9% Son: - For the pnid 1980 - 1987 dat ae amon an stahstal prof th Ghamn Edttn Swe. - For the p.d 1988 - 1991 data ØaM O thØ anl rports cf the MAisy ~ of Eu n PAE Di . - M~ cal . Note: Shadd ame øidikace ta reiAy of t dat me dotM Se. Mbotnot 13 in N. Table 5. Access and Quality Indicators by Level Region and Year (1988-89 - 1990-91) ASHANTI BRONG AHAFO CENTRAL EASTERN GREATER ACCRA 19889 1989/90 1990/91 199 198990 1990/91 198889 1989/90 1990/91 198889 1989/90 1990/91 1988/89 1989/90 1990/91 Primary schools Enrollmerts 301,313 321,143 327,685 178,139 180,986 139,099 171,931 188,388 197,613 265,075 273,876 281,431 158,962 169,205 176,752 % change 6.6% 2.0% 1.6% -23.1% 5.3% 4.9% 3.3% 2.8% 6.4% 4.5% % girls 46.2 46.6 46.7 45.2 45.7 45.9 44.7 44.8 45.2 44.9 45.5 46.1 48.9 49.1 49.2 P1 cirollments 61,596 64,134 66,503 37,983 38,439 41,182 38,584 39,655 41,022 57,831 58,063 58,079 28,588 29,264 30,184 % change 4.1% 3.7% 1.2% 7.1% 2-8% 3.4% 0.4% 0.0% 2.4% 3.1% % girls 47.9 48.9 48.3 47.0 47.5 47.6 47.0 47.8 47.7 47.0 48.2 48.1 49.1 50.8 50.0 Pupi/eacher ratio 28.4 29.3 29.8 23.0 23.1 25.7 27.7 28.1 31.0 23.2 25.4 25.7 38.1 38.8 39.3 % trained teachers 67.1 70.6 71.6 48.2 53.0 54.2 58.1 70.3 67.8 66.5 68.3 69.4 88.0 90.9 88.5 Jss Enrollments 128,662 129,648 114,265 72,095 70,046 63,234 67.770 70,135 62,200 97,168 102,702 89,598 73,717 77,006 74,170 % change 0.8% 11.9% -2.8% -9.7% 3.5% -11.3% 5.7% -12.8% 4.5% -3.7% % girls 42.6 42.9 42.7 43.6 41.9 41.1 38.2 38.6 38.7 40.7 40.4 40.8 46.9 49.6 47.2 JSSI enrollments 40,570 40,436 43,291 22,641 22,062 23,506 21,130 21,704 24,015 29,470 31.907 34,083 24,293 26,061 29,634 % change -0.3% 7.1% -2.6% 6.5% 2.7% 10.6% 8.3% 6.8% 7.3% 13.7% %girls 43 44 43.9 42.4 428 421 40.4 40.4 40.0 43.1 42.0 42.1 47.2 50.8 47.9 Pupil/teacher ratio 19.5 19.9 17.3 18.0 17.1 19.3 16.8 17.3 16.7 16.0 18.0 17.1 23.2 22.5 22.7 % trained teachers 76.5 66.9 70.3 64.3 58.3 74.6 64.1 61.6 70.2 74.8 69.5 80.2 89.5 77.8 81.7 SSS Enrollments 30,329 33,112 33,083 11,134 13,054 17,494 19,474 21,360 24,608 23,528 25.790 28,929 24,114 24,496 27,348 % change 9.2% -0.1% 17.2% 34.0% 9.7% 15.2% 9.6% 12.2% 1.6% 11.6% %girls 30.1 30.9 31.6 22.5 23.5 25.2 38.7 38.5 37.2 35.8 36.1 36.1 39.7 39.0 39.8 SSSI enrollments 7,030 7,182 8,032 37,983 38,439 41,182 4,039 4,832 5,404 5,233 5,805 7,087 4,085 4,080 6,011 % change 12.1% 1.9% 1.2% 7.1% 19.6% 11.8% 10.9% 22.1% -0.1% 47.3% %girls 33.5 34.1 30.5 47.0 47.5 47.6 20.0 22.2 22.8 38.6 37.9 34.8 41.0 41.6 39.9 Student/Iteacher rati 16.9 22.8 22.6 20.7 21.3 23.0 20.0 22.2 22.8 17.8 19.4 18.7 17.7 20.6 21.5 % trained teachers 74.7 74.6 72.6 67.8 73.5 62.9 73.5 83.1 79.1 74.4 78.2 74.3 60.8 71.1 71.7 Table 5. (Continued) p.2 NORTHERN UPPER EATf UP'ER WET VOLTA WESTERN 1988i89 19899@ 19991 198.89 19998 1998/91 198819 19899S 1991 1988U~ 19899 191 1988U8 198¢9 1991, Primary schools Enromn 91,061 95,148 124,531 45,022 50,933 65,752 30,830 36,797 43,089 171,499 197,036 195,405 177,591 189,562 197,791 % chan8 4.5% 30.9% 13.1% 29.1% 19.4% 17.1% 14.9% -0.8% 6.7% 4.3% % girls 32.9 33.4 34.2 37.5 38.6 38.3 39.1 40.3 41.4 45.2 45.2 45.7 43.9 44.5 44.9 PI en1rlmnts 27,337 25,118 35,895 12,976 15.951 20,434 8,643 9,284 11,552 37,276 42,346 41,458 39,291 41,435 42,642 % chane -8.1% 42.9% 22.9% 28.1% 7.4% 24.4% 13.6% -2.1% 5.5% 2.9% % girls 35.9 37.8 37.9 39.9 41.9 40.5 42.6 43.1 43.3 47.8 47.5 47.7 46.6 47.2 47.2 Pupil/teaher ratio 18.1 22.8 26.5 20.2 26.4 33.0 24.8 26.1 32.6 24.3 26.0 26.9 26.5 26.5 27.6 % traind teachrs 40.6 44.9 41.5 62.3 74.7 72.6 70.3 82.2 78.1 68.0 73.8 77.4 41.7 52.3 49.8 Jss EnIroImnts 17,545 20,621 21,691 10,531 10,806 11,395 8,982 11,338 10,637 71,064 71,448 64,991 61,156 61,268 57,162 % change 17.5% 5.2% 2.6% 5.5% 26.2% -6.2% 0.5% -9.0% 0.2% -6.7% % girls 31.3 29.1 26.6 38.5 36.3 35.9 38.2 33.5 37.9 39.9 40.3 39.2 38.9 39.2 39.1 JSS1 nrollment 6,919 7,223 8,390 3,620 3,775 4,466 3,171 4,741 3,897 22,119 22,572 24,687 19,146 20,150 22,486 % chang 4.4% 16.2% 4.3% 18.3% 49.5% -17.8% 2.0% 9.4% 5.2% 11.6% % giris 28.5 28.2 26.6 36.2 36.0 36.1 37.3 27.9 37.3 40.9 42.3 40.2 39.6 40.6 40.2 Pupil/tear ratio 14.4 14.1 20.1 11.6 10.2 15.2 12.3 12.8 15.4 16.7 17.7 20.4 17.1 15.2 19.7 % trainød teache 66.2 55.1 73.7 59.0 47.9 63.3 69.0 54.1 68.1 74.9 73.2 87.1 61.7 56.2 76.6 sss Enrollment 1,586 1,476 3,652 4,512 4,671 6,219 2,991 2,884 3,990 17,394 19,730 24,707 13,468 15,103 17,928 %change -6.9% 147.4% 3.5% 33.1% -3.6% 38.3% 13.4% 25.2% 12.1% 18.7% % girls 19.1 20.5 21.9 24.5 27.7 30.0 27.0 30.0 31.3 31.6 34.3 31.1 33.6 34.3 32.8 SSSi anollment 7,030 7,882 8,032 1,030 912 1,840 607 565 1,495 4,005 4,657 6,869 3,104 3,664 4,616 % change 12.1% 1.9% -11.5% 101.8% -6.9% 164.6% 16.3% 47.5% 18.0% 26.0% % girls 23.0 22.4 23.5 25.1 33.2 31.9 27.7 34.7 32.2 31.8 31.1 32.9 32.7 35.8 30.4 Studenl/tachcr rati 21.7 21.3 24.5 19.0 19.6 23.2 18.0 16.7 20.3 15.8 21.7 20.4 19.6 21.7 23.3 % trained teachen 57.9 54.2 60.2 60.5 57.6 63.1 66.9 68.8 62.9 71.4 81.2 72.6 73.9 81.2 76.0 - 18 - Table 6. Teachers in Primary and JSS/Middle Schools Primary Schools 1986/87 1987/88 1988/89 1989/90 1990/91 1991/92 Number of Teachers 64,359 63,367 62,670 62,859 62,823 64,035 Pupil/Teacher Ratio 22.8 23.3 25.5 27.1 28.7 28.1 % Trained Teachers 55.8 57.9 60.3 66.4 66.1 72.1 JSS/Middle Schools Number of Teachers 33,443 40,528 34,584 35,262 30,708 33,351 Pupil/Teacher Ratio 18.6 15.1 17.6 17.7 18.5 17.7 % Trained Teachers 65.2 67.3 71.8 64.9 75.9 71.9 Source: Annual statistical reports ofGMi (until 1987-88) and MoE (since 1988) plus calculations by UNICEF and WorldBank missions.