Uganda - Fourth Education Project

Document of The World Bank FOR OFFICIAL USE ONLY RPwNO- 14058-UG IMPLEMENTATION COMPLETION REPORT UGANDA FOURTH EDUCATION PROJECT (CREDIT 1965-UG) MARCH 15, 1995 Population and Human resources Division Eastern Africa Department Africa Region This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. UGANDA FOURTH EDUCATION PROJECT CURRENCY EQUIVALENTS At the time of appraisal USh 150 = US$ 1.00 USh l= US$ 0.0066 At the time of project completion mission USh 900 = US$ 1.00 USh I = US$ 0.0011 WEIGHTS AND MEASURES Metric System FISCAL YEAR OF BORROWER July I - June 30 ACADEMIC YEAR For Primary and Secondary Schools: January - November For University: October - July ABBREVIATIONS AND ACRONYMS CTB - Central Tender Board DCA - Development Credit Agreement DEO - District Education Officer EPRC - Education Policy Reform Commission IMU - Instructional Materials Unit INSTEP - In-Service Teacher Education Project, ODA KIE - Kenya Institute of Education MoES - Ministry of Education and Sports MoFEP - Ministry of Finance and Economic Planning NCDC - National Curriculum Development Center NTC - National Teacher's College ODA - Overseas Development Agency, UK PCR - Project Completion Report PIu - Project Implementation Unit PLE - Primary Leaving Examination PTA - Parent-Tcachers' Association PTTC - Primary Teacher Training College SAR - Staff Appraisal Report SEPU - School Equipment Production Unit (Kenya) SHEP - School Health Education Program STEPU - Science & Technology Equipment and Production SUPER - Support for Uganda Primary Education Reform TF - Textbook Fund TPP - Textbook Pilot Project TDMS - Teacher Developmcnt and Management System TF - Textbook Fund UPE - Universal Primary Education VSO - Volunteer Service Organization FOR OFFICIAL USE ONLY Table of Contents P re fa c e .......................................................................................................... E v alu atio n S u m m ary ................................................................................................ In tro d u ctio n ................................................................................................... Project O bjectives and D escription ................................................................. Im plem entation Experience and Results.......................................................... S u m m ary of F ind ings..................................................................................... Part I: Project Im plem entation Assessm ent ............................................................ B a ck g ro u n d ................................................................................................... 1 Project O bjectives and D escription................................................................. A chievem ent of Project O bjectives ................................................................. 2 M ajor Factors A ffecting the Project................................................................ 3 Im plem entation R ecord .................................................................................. 3 Project Sustainability and Future Operation.................................................... 7 B an k 's P erfo rm an ce ....................................................................................... 7 B orrow er's P erform ance ................................................................................. 8 A ssessm ent of O utcom e ................................................................................. 8 K ey L essons L earned ..................................................................................... 8 Part II:Statistical Annexes Table 1 Summary of Assessments Table 2 Related Bank Credits Table 3 Project Timetable Table 4 Credit Disbursements: Cumulative Estimated and Actual Table 5 Key Indicators for Project Implementation Table 6 Key Indicators for Project Operation Table 7 Studies Included in Project Table 8A Project Costs Table 8B Project Financing Table 9A Project Cost Effectiveness Table 9B Sensitivity Table 10 Status of Legal Covenants Table 11 Compliance with Operational Manual Statements Table 12 Bank Resources: Staff Inputs Table 13 Bank Resources: Missions Appendices Appendix A Mission Aide-Memoire Appendix B Borrower Contribution to the ICR Appendix C Cofinancier Contribution (not applicable) Appendix D Chart and Other Tables Chart Implementation Schedule Table 1 Pupils per Book Ratio Estimates Table 2 Supply of Textbooks to Pilot Schools and Pupil Textbook Ratios Achieved 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. Table 3 Enrollment Changes in Textbook Pilot Project Districts Between 1989 and 1990 Table 4 Primary School Enrolment by District (1989-90, 1992-93) Table 5 Textbook Fund: Parental and Government Contributions Table 6 Number of Pilot Schools by District and Rate of Parental Participation in TPP Table 7 Expected Counterpart Funding Based on Actual Project Expenditures Table 8 Counterpart Fund Releases to Education IV Table 9 Status of Audit Reports Table 10 Staffing Status of the Inspectorate Appendix E Map of Uganda Fourth Education Project IMPLEMENTATION COMPLETION REPORT UGANDA FOURTH EDUCATION PROJECT (CR. 1965-UG) Preface This is the Implementation Completion Report (ICR) for the Fourth Education Project in Uganda, for which Cr. 1965-UG in the amount of SDR 17.1 million (US$ 22.0 million) was approved on November 15, 1988 and made effective on May 12, 1989. The credit was closed on June 30, 1994 (the original scheduled date). The last disbursement took place on March 3,1994, and undisbursed balance of SDR 5.2 million (US$7.6 million equivalent) was canceled as of September 7, 1994. The ICR was prepared by Young Kimaro from the Population and Human Resources Division (Eastern Africa Department) of the Africa Region and reviewed by Messrs. Jacob van Lutsenburg Maas (Division Chief) and Surendra Agarwal (Projects Advisor). The borrower provided its own assessment of the project in a Project Completion Report, submitted to IDA on October 15, 1994. An executive summary of the report is included as Appendix B to the ICR. Evaluation Summary page i of iv Evaluation Summary Introduction 1. The project was preceded by Education III (Cr. 1329-UG; 1983-88) an emergency operation which provided textbooks and instructional materials to primary schools that had been depleted of teaching materials and books during the extended political turmoil and civil war. That project covered approx 5,200 schools, leaving out those which could not be reached for security reasons and smaller schools which did not go beyond P5. A disparity soon emerged between the assisted and non-assisted schools, with students in the former consistently outperforming those in the latter. Education IV (Cr. 1965-UG) was designed to redress this disparity and to provide a bridge to a large sector-wide operation. Project Objectives and Description 2. The objectives of the project were: (a) To maintain the momentum of the Government's educational rehabilitation efforts at the primary education level and ensure their sustainability; (b) To assist the Government in initiating, on a limited (pilot) basis, a revolving Textbook Fund (TF) for the replenishment of instructional materials on a permanent basis; (c) To strengthen key institutions under the Ministry of Education (now Ministry of Education and Sports) involved in improving and monitoring educational quality and in project implementation; and (d) To help prepare a more extensive project to implement the Government's emerging educational strategy. Project objectives were appropriately modest for the then existing institutional capacity and for the emergency nature of the intervention. Implementation Experience and Results 3. The project was expected to cost US$27.9 million, of which IDA was to finance US$22.0 million to: (a) Provide textbooks and instructional materials to about 3,400 primary schools not assisted under Education III; (b) Assist institutional capacity and policy development; and (c) Carry out pre-investment studies primarily to complement ongoing policy work on cost- effectiveness. Rehabilitation of education facilities in Gulu and Bushenyi districts was added later to further serve the project objectives, utilizing unused contingencies and project savings. 4. The project took five years to complete. It became effective in May, 1989, and closed in June, 1994. This compares favorably with the country average of 7 years and the sector average Evaluation Summary page ii of iv for Africa of 9 years. The project closed as of June, 1994; the undisbursed balance of US$7.6 million was cancelled as of September 7, 1994,. 5. Based on information available, the mission found that: * The project objectives of maintaining the rehabilitation momentum and providing a bridge to a more substantive education project were achieved. In addition to providing input to policy discussions and formulation, and laying the ground work for a follow-up IDA operation, numerous studies undertaken by the project also helped identify the areas in need of strengthening and suitable methods for doing so, thus facilitating MoES's ability to mobilize external support. * Most of the project activities were completed by September, 1991 (Part II, Table 4 and Appendix D, Chart), a full year ahead of the appraisal estimates. * Textbooks provision exceeded the target, and the textbooks were procured and distributed cost effectively and in a timely manner, realizing a cost savings of about US$2.6 million (Part I, paras. 17-20 and Part II, Table 5). * Textbook Pilot Project (TPP) was prematurely discontinued, possibly for the wrong reasons, i.e., overloading of the PIU rather than lack of parental interest or its importance to the sector. (Part I, paras. 21-27). * Institutional capacity of MoES was improved, most importantly by clarifying the roles of NCDC and the Inspectorate (Part 1, paras. 28-31). * Pre-investment studies exceeded the target in number (16 compared to 6 topics identified) and in development impact (Part I, para. 32 and Part II, Table 7). Most of these were undertaken in the first two years of the project, which provided important input to the discussions on the White Paper (1992) and the Five Year Investment Plan (1991). * Education facilities rehabilitation component for Bushenyi and Gulu, which was added to the project in 1992 to utilize unused contingencies and project savings, did. not materialize due to delays in procurement. The component was absorbed into Education V, which is financing similar activities in other districts (Part I, para. 33). * A serious shortfall in Government counterpart funding. Compared to 21 percent anticipated at appraisal (SAR p.18), actual counterpart financing, including parental contributions to the TPP, came to 7.5 percent of total project cost. Counterpart fund releases were often delayed, sporadic, and inadequate (Part I, paras. 14-15 and Appendix D, Table 8). This adversely affected the field operations of the Inspectorate (Part I, para. 29). 6. The project was foremost an emergency intervention to reactivate an education system which had been moribund from years of civil unrest. Except for testing out a mechanism for replenishing textbooks, sustaining the impact of the project after the completion of implementation Evaluation Summary page iii of iv was a secondary consideration. Two key areas on which future operations should focus to sustain the project's development momentum are: (i) development of a mechanism for sustained replenishment of textbooks, and (ii) preservation and replenishment of stock of sector knowledge (Part I, paras. 33-34). Summary of Findings 7. Education IV took risks to respond quickly to an urgent need, despite a dearth of information, to resuscitate the ailing primary education system. Shortcomings which resulted were amply compensated by successful implementation of the project and the speed with which the primary education sector was able to embark on the road to recovery. Key lessons which could be drawn from the project are: * Higher initial investment for higher physical specifications, training of teachers in book management, and timely provision of storage cupboards can more than pay for itself with prolonged book life. The project was able to realize increased book use life from an expected average of 3 years to 5-7 years at substantial recurrent cost savings. * Meeting short-term needs for textbooks and the development of a local publishing industry need not be mutually exclusive. The project provided textbooks speedily by importing them (largely written by Ugandans for Uganda) from abroad. At the same time, MoES took measures to liberalize the textbook sector and to assist the development of the local publishing and printing industry, with positive results. * A systematic and planned devolvement of project implementation responsibilities from the PIU into the mainstream of the Ministry is necessary to assure the Ministry's ownership of the project and its sustainability after project completion. Ideally such a plan should be incorporated into the project design. A detailed plan of action for such a devolvement should be made one of the central themes of Mid-term reviews of projects with similar implementation arrangements. * Closer and more systematic consultation with households through sample surveys could have enabled the implementors to understand what parents are willing and able to pay and what mechanisms would be more credible and, therefore, acceptable to them. * Shortcomings in project design can, in some cases, be overcome and the project successfully implemented if it has the strong commitment of the Borrower, a dedicated implementing agency, and the Borrower and the Bank are flexible and willing to fine-tune the project as it is being implemented. * Pre-investment studies can provide enormous impact on sector policy formulation if the need for information and data analysis is fully appreciated by the Borrower. Conscientious undertaking of studies, involvement of numerous local consultants, and timely completion of studies, enabled the project to provide meaningful input to the deliberation of the White Paper and the Five-Year Investment Plan. * Textbook supply schemes should be kept uniform among schools in close proximity to one another to minimize parental disaffection. Evaluation Summary page iv of iv * A closer connection should be established between fee payment and textbook supply. This will help make the scheme more credible to the parents and, thus, encourage their participation. * Impact on education cannot be fully achieved through physical delivery of textbooks alone. It should be combined with appropriate book use, a factor which is easily overlooked in project design or supervision. * A systematic monitoring and evaluation of the project against its development objectives could have enabled the project to identify and correct important deficiencies, such as low usage of books, with a positive impact on project outcome. Part I: Implementation Assessment paae 1 of 11 Part I: Project Implementation Assessment' Background 1. Political turmoil throughout much of 1970s and 1980s, as well as two civil wars, left many Ugandan schools in total disrepair, depleted of their furnishings, textbooks and instructional materials. Teachers were paid poorly and intermittently, and many left the teaching profession for better paying jobs, within or outside the country. Uganda's gross primary school enrollment nonetheless remained above 50 percent throughout the years of political turmoil because of strong parental interest in children's education, but varied considerably throughout the country. Parents supplemented meager Government funding to keep the schools open and operating. However, their means were limited. By the time Education IV was being prepared, the education system was faced with a continuing dearth of textbooks and instructional materials, dilapidated school facilities and furnishings, and low pay/low morale of teachers. This was reflected in declining academic performance and high drop-out rates. Project Objectives and Description 2. Schools urgently needed minimal instructional materials to enable the teachers to teach more effectively. Education IV responded quickly to meet this need. It was to be a bridging operation between the emergency intervention of Education III (1983-1988) and a subsequent, more extensive and sector-wide operation (Education V became effective in 1993. See Part II, Table 2). The project also aimed to eliminate the disparity that had developed between the 5,200 schools that were assisted under Education III and those which were unassisted for reasons of lack of security in the locality, small school size or having only become operational since the completion of Education III. 3. The objectives of the project were: (a) To maintain the momentum of the Government's educational rehabilitation efforts at the primary education level and ensure its sustainability; (b) To assist the Government in initiating, on a limited (pilot) basis, a revolving Textbook Fund (TF) for the replenishment of instructional materials on a permanent basis; (c) To strengthen key institutions under the Ministry of Education (now Ministry of Education and Sports) involved in improving and monitoring educational quality and in project implementation; and (d) To help prepare a more extensive project to implement the Government's emerging educational strategy. 1 An ICR mission took place from November 22 to December 8, 1994. The mission was composed of Tony Read (Textbook Specialist/Consultant), Harriet Nannyonjo (Program Officer, Resident Mission/Kampala) and Young Kimaro (Economist and Mission Leader). The report is based on review of documents and correspondences in project files, data provided by Ministry of Education and Sports, particularly the Project Implementation Unit (PIU), observations of the mission from field visits, discussions with PIU staff, Government officials, teachers and parents. Much of the data and insights contained in the Borrower's PCR provided valuable inputs to the ICR. A draft ICR was presented to the Government on February 9, 1995. Borrower comments, discussed on three separate occasions, are summarized in an Aide Memoire dated February 21, 1995 (Attachment A). Part I: Implementation Assessment pame 2 of 11 4. The project aimed to: (a) provide textbooks and instructional materials to approximately 3,400 primary schools not assisted under Education III; (b) assist in institutional and policy development to i - Set up a pilot Textbook Fund (TF) to be financed from parental and matching Government contributions and intended to replenish textbooks in self-selected areas which had benefited from the Third Project; ii - Strengthen the Inspectorate (training, technical assistance, transportation, vehicle maintenance); iii - Support the National Curriculum Development Center (NCDC) and the Science and Technology Equipment and Production Unit (STEPU) by provision of technical assistance, training, and funding for initial operating costs; iv - Strengthen the Project Implementation Unit (PIU); and v - Support the Education Policy Review Commission (EPRC) to help finalize its work and organize a follow-up donors' conference. (c) carry out pre-investment studies primarily to complement ongoing policy work on cost- effectiveness. 5. The Development Credit Agreement was amended on March 9, 1992 to include rehabilitation of education facilities in Bushenyi and Gulu to accommodate a Teacher Development Management System (TDMS) network in these districts. 6. Most of the project activities were completed by September 1991. At the time of project closing, only US$17.1 million had been expended in contrast with US$19.4 in the Borrower's PCR (see para. 14 on source of the difference), and far below the US$27.9 million estimated. US$15.8 million equivalent were drawn from IDA credit of US$22.0 million. Following project closing on June 30, 1994, the remaining balance of US$7.6 million was canceled. 7. The objectives of the project were modest, clearly stated for the provision of instructional materials, but less so for institutional strengthening. The project was simple in design, involving in large part the procurement and delivery of textbooks. It was well within the capacity of a weak MoES to implement with some external technical assistance. IDA was responsive to the urgency of the situation and took risks to put a project in place, despite a lack of background information; the Borrower and IDA were both flexible and responsive, adjusting the project to changing circumstances during implementation. Achievement of Project Objectives 8. The project had very modest sector policy objectives, which were to: (i) eliminate the discrepancy between the number of teachers actually teaching and the number of teachers on the payroll (DCA Article III, para. 3.03), (ii) ensure that the level of enrollment at primary school teachers' training colleges is cost-effective, this objective was based on a false and yet to be proved assumption about scale economies, (iii) improve the ratio of school-size to the number of subjects offered at secondary school teachers' training colleges and technical and vocational institutions (DCA Article III, para. 3.04), and carry out studies for, among others, implementation policy Part I: Implementation Assessment page 3 of 11 measures resulting from ongoing assessments of the education sector. These objectives were partially met. A census of MoES staff, including the headcounting of teachers, has been carried out, and all teachers' payroll has been computerized and decentralized to identify those to be excised from the payroll. PTCs have been reduced from 99 to 67; 16 studies were carried out (Part II, Table 7), and an analysis of fixed and variable PTC costs will be undertaken under Education V (Primary Education and Teacher Development Project). 9. A financial objective was achieved in procuring textbooks, which accounted for 66 percent of total project expenditures. More books (6 percent) were procured and distributed at 33 percent lower cost than anticipated in the SAR (see Part II Table 5). Physical specifications for the textbooks were cost effective, enabling substantial recurrent cost savings due to longer book life (Part II Tables 9A and 9B). However, the project did not achieve the financial objective of establishing a sustainable means for replenishing textbooks as the pilot was discontinued before such a mechanism could be established (paras. 21-27). 10. Institutional development objective was partially achieved (paras. 28-31) by increasing the number of and upgrading the professional capacity through training of staff (Inspectorate). This was achieved by providing funds to start up the operation to put a new institution into motion (STEPU), and by clarifying the roles of the institutions (NCDC and Inspectorate). Major Factors Affecting the Project 11. The project was implemented during a period when Uganda was recovering from prolonged misgovernment and economic deterioration, including a recent civil war. The new National Resistance Movement government inherited a civil service which had been depleted of trained manpower and was paid far less than a living wage. An important factor beyond the Government's control was the collapse in 1987-88 of world coffee prices; as a result, revenues from taxes on coffee exports decreased from 4.6% of GDP in 1985/86 to 1.6% of GDP in 1987/88, and only 0.1% of GDP in 1991/92. The total Government revenue effort was only 5.7% of GDP in 1987/88, increasing to 8.2% in 1993/94, as the Government succeeded in gradually increasing collection of non-coffee revenues. However, the revenue effort in Uganda remained far below the average revenue/GDP ratio of 19% in African countries, and this made it very difficult for the Government to provide the agreed counterpart funding. Initially, domestic inflation was high and the exchange rate depreciated rapidly, but by the end of the period the Government succeeded in establishing price and exchange rate stability. Factors subject to the implementing agency's control were coordination with other departments of the Ministry, and the Inspectorate in particular. At the early stage of institutional development, the Ministry remained highly compartmentalized with little interchange among separate departments. PIU's ability to coordinate with other departments of the Ministry and garner their support was limited. Implementation Record 12. Key Performance Indicators. The SAR did not provide key performance indicators. For ICR purposes, a list of performance indicators was derived for three components, Textbooks, Textbook Pilot, and education facilities from targets documented (Part II, Table 5). Indicators show that the textbook component performance exceeded the target by 6 percent (the last column of the same Table) while incurring much lower cost (savings of 33 percent). The Textbook Pilot Project, on the other hand, fell far short of its original targets. The performance of these two Part I: Implementation Assessment page 4 of 11 components is discussed in detail below (paras. 16-25). Delays in procurement pushed the added rehabilitation component beyond the project timeframe (para. 32). 13. Disbursements. Disbursement data show that, after a start up delay of one quarter, most activities were completed by September, 1991, more than a year earlier than anticipated (Part II, Table 4). Total funds disbursed at the time of project closing was US$15.8 million or 71 percent of the original amount. The undisbursed balance of US$7.6 million at project closing, including US$1.4 million gained from favorable exchange rate movements, was canceled as of September 7, 1994. 14. Counterpart financing. Local financing of the project, as computed by the ICR mission was US$1.3 million, compared to US$3.6 million expected (SAR estimate adjusted for lower total project cost). While the SAR anticipated 21 percent counterpart financing, the actual share of the Borrower came to 7.5 percent (Appendix D, Table 8).2 15. Funds from the Ministry of Finance and Economic Planning (MoFEP) were often delayed and sporadic, with extended dry periods between fiscal years. While the Government released 87.8 percent of the budget voted for the project overall, the voted amount fell below the level needed to meet project counteipart funding requirements. This has led to consistent shortfalls in funding for those expenditure categories which depended heavily on counterpart funding such as in-country workshops and seminars (50 percent local funding), and incremental operating costs (70-80 percent local funding) of the Inspectorate and the PIU (Appendix D, Table 7). 16. Provision of textbooks and instructional materials. This component is the largest and most central component of the project, accounting for more than 60 percent of total actual project expenditures. Its aim was to extend the benefits of basic textbooks and teachers' guide to all schools in Uganda, thereby reducing the differential in school quality created by Education III. 17. The selection, procurement, consolidation and delivery of about 3.2 million Education IV textbooks and 0.29 million for "topping-up" for the pilot schools were all implemented early in the project in an efficient and timely manner, with most of the delivery taking place in mid-1990. Considerable savings were realized (US$2.6 million) from this component. Schools were adequately prepared for the arrival of the books: teachers were trained on storage and stock management; metal storage lockers were provided in advance of book arrival. Provision of textbooks to 3,405 primary schools and an additional and unplanned provision to 65 Primary Teacher Training Colleges, gave a morale boost to a demoralized system and provided a stimulus to quality upgrading of schools. Careful preparation and physical specifications contributed to prolonged book life, from the anticipated 3 years to 5-7 years, yielding considerable recurrent cost savings. However, protracted life of the books also reflects a tendency to under use the books for various reasons: (a) Uncertain about the future stock replacement, schools issue few books at a time to pupils to make the existing stock last longer; 2 The Borrower's PCR states total local funding to be US$3.6 million. The difference between IDA and PlU estimates in US dollar terms arises from use of different exchange rates for the Uganda shilling, which depreciated from USh. 150/USS at the time of project appraisal to USh. 1,218/US$ in April, 1993. The PIU applied the exchange rate prevailing at appraisal (150:1), whereas IDA applied monthly average rates (Appendix D, Table 5). Pu's method is not only a poor accounting practice, but the exchange rate which translates USh. 961,590,000 into USS3.6 million is USh. 2671US$ and not Ush. 1501US$. This also indicates inadequate attention to counterpart expenditures during supervision. Part I: Implementation Assessment page 5 of 11 (b) The practice of writing out textbook contents on the blackboard for pupils to copy, which developed during years of under supply of books, has become such an ingrained teaching habit that teachers are unable to adjust quickly; and (c) Fear of losing and not being able to account for government owned book stock , hence a tendency to keep books locked away rather than to issue them. Education IV may have achieved less than full impact on education outcome because of inadequate attention to book usage. 18. The component was under-prepared and lacked a comprehensive baseline survey of existing book provision levels or book usage practices. This resulted in setting arbitrary pupil to book ratio targets, a decision not to re-supply Education III schools with textbooks though the previous stock was now obsolete, and inadequate attention to book usage practices in schools which undermined the realization of full benefits from an increased supply of textbooks. 19. The project was to erase the quality disparity which had emerged between the schools assisted or not assisted under the previous project. Instead, Education IV may have introduced further gradations to the disparity such as the level of book stock, frequency of resupply, updatedness of titles among schools, largely because supply decisions had been made without adequate information on the stock situation of schools. 20. Textbook Pilot Project (TPP). The project was to develop a mechanism to replenish the textbook stock in a sustainable manner. Though a small component (5 percent of actual total project cost), it remains relevant and critical to primary education. 21. Four districts were selected for their interest in schooling (using enrollment rates as proxies) and by their economic status: Iganga (high enrollment), Masindi (low enrollment rate), Masaka (wealthy), and Mubende (poor) districts were selected. Districts identified 621 schools whose textbook stocks had been depleted during the civil strife and which badly needed restocking. District officials and schools were briefed on administrative arrangements. 22. The first delivery of textbooks for the pilot scheme was intended to "top up" their depleted stock, funded from the IDA credit. Some 289,600 books on five subjects (English, math, social studies, science and local languages) were procured and distributed in mid-1990, at the same time that textbooks were also being supplied to other schools which had not received books under the previous project. The parents of the pilot schools were required to contribute USh.500 per child per year (USh.300 or US$2.00 equivalent at the time of appraisal) to the Textbook Fund (TF) to be used for replenishing the textbooks while parents at other schools were not required to pay for the textbooks provided to them. This differential treatment appears to have created further enrollment shifts out of pilot to non-pilot schools (Appendix D, Table 3). 23. Over 1989-92, a total of USh. 116.2 million (about US$200,000) was collected from the parents (Appendix D, Table 5), and Government contributed USh.188.5 million (about US$220,000) to the TF. Because of the rapid depreciation of the currency, the PIU was able to procure only US$369,000 worth of books (about 53,400 for Math and 81,700 for Science) with the TF (Appendix D, Table 2). Part I: Implementation Assessment Page 6 of 11 24. The TPP encountered numerous difficulties, mainly arising from weakness in the project design. Inadequate attention was given to the government's weak financial status, and the order of magnitude of government's financing obligations was not made clear in the SAR. Moreover, as designed, the more successful the pilot, the greater the financial burden it would impose on the Government because of its obligation to provide matching funds. 25. The designers of the project may have been equally optimistic about the parents' ability and willingness to top up their already high share of the cost of educating their children (about 65- 90 percent, according to Uganda Social Sector Review, 1990). Further dampening the parents' understanding of the scheme and their willingness to pay were a lack of direct connection between the funds collected and textbook replenishments received, arising from a centrally managed system, absence of ownership of the textbooks acquired through the TF, and unchecked free ridership which gave those defaulting in payments equal access to the books. 26. The interim TPP Evaluation study in 1991 recommended that the pilot scheme be reduced in scope and continue to be tested in one district to reduce the supervision burden on the PIU, Bank missions also encouraged the Government to come forth with a proposal for restructuring the pilot on a reduced scale. But, field coordination between the Inspectorate and the PIU was poor. The Borrower did not follow-up on the Evaluation Study or the Bank's recommendations to restructure the pilot. The pilot scheme was subsequently discontinued following the distribution of science books in 1993, leaving no alternative mechanism for achieving sustainable replenishment of books. 27. Institutional Strengthening: the Inspectorate. The project helped strengthen the Inspectorate by increasing the number of inspectors from 75 to 196, the majority of whom were to operate in the districts. It improved their professional capacity through training of more than half of the incumbents and almost all new recruits (Appendix D, Table 10), and it provided motorcycles to increase inspectors' mobility in the field. A TA advisor set up a structured training system with assistance from the Trainers of Trainers (ToTs) who were recruited and trained by him. Twelve workshops/seminars were held, of which 10 were for Headquarters staff. One guidebook was prepared by the Advisor; seven more were completed by the Inspectorate after the Advisor's departure with further external assistance. 28. Several factors reduced the impact of this component. First, the inspectors' ability to visit and supervise schools was limited in the initial years of the project due to delays in the procurement and distribution of the motorcycles, weak control over vehicle use, and inadequate operating funds for their maintenance or field visits. Second, there were difficulties in integrating the work of the Advisor into the Inspectorate as the Advisor reported to, and was accountable to, the PIU. The Advisor worked with a few counterparts in the Inspectorate but generally remained independent of the Inspectorate management. The coordination between the Inspectorate and the PIU was weak, particularly in the field. Third, the focus of training was biased toward the Headquarters, and not enough was provided for the field Inspectors. Fourth, the Inspectorate received no finds from the project after the initial US$10,000 in 1990, though US$120,000 had been budgeted from the IDA credit for the purpose. Lack of local funding does not appear to be a satisfactory explanation, as operating funds for the PIU, also heavily dependent on local funding, was not under similar constraints. 29. Institutional Strengthening: NCDC and STEPU. The project was minimalist in its support for both NCDC and STEPU. Funding for NCDC was limited to meeting the operating costs of primary subject panels to design syllabi and a study on the prospects for a local publishing Part I: Implementation Assessment page 7 of 11 and printing industry. The funding for subject panels was suspended after just one year because of differences in priority between NCDC and the Ministry (NCDC preferring to focus on non-core subjects for which less work had been done), only to be resumed in the last year of project implementation. The study on local publishing helped to redefine NCDC's role, leading to the adoption of multiple textbooks which effectively dismantled NCDC's monopoly over textbook publishing. A conflict of interest in NCDC's role as both the producer and the evaluator of books for schools was also eliminated with the evaluation responsibility being taken over by the Inspectorate. Schools are now free to choose from a list of approved textbooks; it is up to the publishers to promote their product to individual schools. In response to the opening of the textbook sector, a dozen commercial publishers have entered into agency arrangements, joint ventures or co-publishing arrangements with foreign companies based in the U.K., Kenya, South Africa, and Ghana. 30. Support received by STEPU was not only minimal, but most of it was for short-run activities: STEPU was provided with start-up equipment and initial operating costs, and three technical staff and one manager completed a study tour of an older Science Equipment Production Unit (SEPU) in Kenya. These activities were all completed before the project became effective. Only a short term consultancy to design a medium to long term work program and investment plans for STEPU, completed in 1991, was funded by the project. The initial injection of funds and know-how enabled STEPU to take off and obtain support from other sources (ODA) to keep it in operation throughout the project period. STEPU may have been premature; throughout the project period, no private enterprise has spontaneously taken to mass producing of STEPU's prototypes. Rather, they demanded guaranteed purchase by Government. One might also question whether designing cost effective educational equipment from locally available materials should necessarily be undertaken by the public sector. 31. Pre-investment studies. These studies were to provide background information for a sector operation. Six topics and four other possible areas of investigation were identified at appraisal. Most of the topics, save two, were substituted either because similar studies were being conducted by other institutions or the topics were no longer a priority. In all, 16 studies were carried out, all between 1990 and 1991, many by local consultants (Part II, Table 7). The studies typically combined information gathering, (to fill the information gap created by protracted neglect during the years of civil strife), analysis of the situation, and recommendations on the options and goals for the future. The Education Policy Reform Commission (EPRC), formed to prepare a White Paper on education, actively participated in selecting the topics and was the primary user of the output. The studies also provided input to the Five-Year Investment Plan and prepared the way for a follow-up education project of a more extensive scale (a US$104.1 million project cofinanced by the Government of Uganda, USAID and IDA). This component easily outweighs its share of total project expenditure (less than 3 percent) in terms of its development impact. 32. Procurement. With the purchase and consolidation of textbooks and instructional materials totaling US$11.3 million and accounting for 66 percent of all goods and services procured by the project, most of the procurement had taken place by the end of 1991, in accordance with acceptable Bank procedures. Efforts to utilize surplus funds for the design and construction of the PTT'Cs and Coordinating Schools in Bushenyi and Gulu districts were derailed by delays and procurement procedural problems -- such as breech of confidentiality of evaluation proceedings, change to the scope of services from those prescribed in the bid document, etc. Re- tendering and award of contract were completed only by November 10, 1993. The consultants were able to complete all the drawings and much of the documentation by Credit closing on June Part I: Implementation Assessment page 8 of 11 30, 1994. However, about 18 months were lost in the process. As it became evident that the rehabilitation work could not be completed by project closing and Education V, which finances similar activities was already effective, it was agreed to absorb the Bushenyi and Gulu districts into this follow-up project. Project Sustainability and Future Operation 33. The Future Operation Plan (Part II, Table 6) lists actions which the Government has already initiated or plans to take to sustain the development impact of Education IV. These actions focus on two areas: finding a mechanism for sustainable replenishment of textbooks, and preservation and replenishment of sector knowledge. 34. Sustainable replenishment of Textbooks. Current textbook related activities of USAID's Support for Uganda Primary Education Reform (SUPER) focus on procurement and distribution of textbooks. They do not address the sustainability issue. In order to design and test out a school based and locally managed Textbook Revolving Fund, a study tour will be undertaken by a team of Ugandan experts to neighboring countries which have been successful in replenishing textbooks and in developing book markets. Following the study tour, a detailed costed action plan will be developed by the IMU, in consultation with the Inspectorate, for designing and implementing the pilot scheme. The initial investment costs for piloting could be born by Education V. IMU will also design and undertake (i) a book use survey to eliminate the guesswork on the target pupil to textbook ratios and to guide future investments in books, and (ii) a textbook market study. Decentralized procurement of textbooks, which is more consistent with textbook market development, will need to be pursued at the earliest opportunity. Such studies could be financed under Education V. Preserving and replenishing the stock of sector knowledge. A pre- investment studies component in Education V should enable continued updating and expanding of the stock of knowledge on Ugandan education established under Education IV. In lieu of EPRC, which had been disbanded after the completion of the White Paper, The Government intends to establish a Standing Committee to continually review policy developments. There is also a need for a locus for the safe-keeping of the stock of knowledge and information being accumulated such as a reading room or a library within the Ministry. Bank's Performance 35. Identification of the critical areas in which intervention was necessary was successful, and the urgency of the situation was correctly perceived. While IDA rightly took risks, with the benefit of hindsight, preparation moved appropriately swiftly for an emergency operation, keeping the project design simple and focused. An appraisal followed in May 1988; three months after the completion of appraisal, the project had been negotiated. Speed and simplicity were of essence, and the team delivered. What IDA did not adequately assess were the financial implications of the project. Whilst it over-estimated both the Government and the parents' capacity and willingness to carry additional financial burden, it underestimated the recurrent cost implications of the Project (Part I, paras. 14 and 24-25). In supervision, IDA was responsive to the changing priorities and needs of the project as presented by the PIU and supported flexibility in implementation. However, it did not pay adequate attention to book use in classrooms, and focus on the project was superceded by a new operation under preparation (Education V). It could also have been more persistent in having the TPP continue to be tested in one district, considering the importance of the sustainable supply of textbooks in the Government's budget plans. IDA was not clear on what audits were expected of the Borrower for the Borrower to fulfill the financial covenant. Both the Part I: Implementation Assessment Page 9 of 11 DCA and SAR are vague on this point. IDA did not pay adequate attention to the quality or coverage of audit report. Hence, though only IDA credit disbursements (and not all project expenditures irrespective of source of funding) were covered and audit reports provided scanty information, typically consisting of one summary table and a covering statement by the auditor, there is no evidence that IDA made an issue of inadequate audit reporting. Borrower performance 36. MoES's institutional capacity was extremely weak, and the practice of internal consultation was not well established when the project was being prepared. This limited its ability to draw on its own staff to contribute subtantively to project preparation. The project was narrowly owned by the PIU and the EPU (while the PS/Planning was within the Ministry). In implementation, retention of the PIU staffing gave the project continuity and the benefit of the experiences from Education III. The PIU prepared the schools well to receive the books (training on book management, storage, etc.), and it kept in close contact with the field, especially in managing the TPP. Shrewd negotiations and the advantage of international competitive bidding enabled the Government to realize US$2.3 million in cost savings. Despite the logistical problems posed by poor road and telecommunications conditions, the textbooks were distributed in a timely fashion. The Borrowers' covenant compliance were frequently delayed and partial (detailed description of the status of each covenant is presented in Part II, Table 10). Other departments of the Ministry were too weak to assume the responsibility for redesigning the textbook pilot project. This may have been exacerbated by the PIU's reluctance to provide operating costs to cover the additional responsibilities expected of other department (para. 29). For future operations, the Ministry is already taking steps to set up a reading room which could function as a depository of sector knowledge being acquired; the IMU is keen on establishing a sustainable means of replenishing textbooks and will prepare a costed action plan. Assessment of Outcome 11. Overall, the project outcome was satisfactory. The momentum of the Government's educational rehabilitation efforts was boosted. The project put the sector on a path to recovery. Textbooks and instructional materials were delivered to schools speedily and cost effectively, thus raising teacher morale and parental interest in children's education. The institutional capacity of the Ministry has been strengthened. Most important has been the redefining of the role of NCDC, and the liberalization of the textbook sector. On the other hand, the project fell short of strengthening the Inspectorate. Pre-investment studies exceeded expectations in number and impact. The project not only fulfilled the objective of preparing for a larger investment operation in the sector (Education V and USAID's SUPER), but it also provided valuable input to the deliberations on the Government's White Paper on education and the Five Year Investment Program. One objective which was not achieved, not mentioned in the Executive Summary of the Borrower's Completion Report (Appendix B), is establishing a Textbook Fund for the replenishment of instructional materials on a permanent basis. This has been tackled as the foremost goal of future operations to sustain the development impact of this project (para. 34 and Part II, Table 6). Part I: Implementation Assessment Pare 10 of 11 Key Lessons Learned 12. Lessons learned from the project are: * Higher initial investment for higher physical specifications, training of teachers in book management, and timely provision of storage cupboards can more than pay for itself with prolonged book life. The project was able to realize increased book use life from an expected average of 3 years to 5-7 years at substantial recurrent cost savings. * Meeting short-term needs for textbooks and the development of a local publishing industry need not be mutually exclusive. The project provided textbooks speedily by importing them (largely written by Ugandans for Uganda) from abroad. At the same time, MoES took measures to liberalize the textbook sector and to assist the development of the local publishing and printing industry, with positive results. * A systematic and planned devolvement of project implementation responsibilities from the PIU into the mainstream of the Ministry is necessary to assure the Ministry's ownership of the project and its sustainability after project completion. Ideally such a plan should be incorporated into the project design. A detailed plan of action for such a devolvement should be made one of the central themes of Mid-term reviews of projects with similar implementation arrangements. * Closer and more systematic consultation with households through sample surveys could have enabled the implementors to understand what parents are willing and able to pay and what mechanisms would be more credible and, therefore, acceptable to them. * Shortcomings in project design can, in some cases, be overcome and the project successfully implemented if it has the strong commitment of the Borrower, a dedicated implementing agency, and the Borrower and the Bank are flexible and willing to fine-tune the project as it is being implemented. * Pre-investment studies can provide enormous impact on sector policy formulation if the need for information and data analysis is fully appreciated by the Borrower. Conscientious undertaking of studies, involvement of numerous local consultants, and timely completion of studies, enabled the project to provide meaningful input to the deliberation of the White Paper and the Five-Year Investment Plan. * Textbook supply schemes should be kept uniform among schools in close proximity to one another to minimize parental disaffection. * A closer connection should be established between fee payment and textbook supply. This will help make the scheme more credible to the parents and, thus, encourage their participation. * Impact on education cannot be fully achieved through physical delivery of textbooks alone. It should be combined with appropriate book use, a factor which is easily overlooked in project design or supervision. PhrtME I:Iqtpptto WPare 11 of 11 * A systematic monitoring and evaluation of the project against its development objectives could have enabled the project to identify and correct important deficiencies, such as low usage of books, with a positive impact on project outcome. т р С� оо а а _ ао оо � и о и • � р и т v д ` v v го о со v-о � и гDi � �о о Э�� с� � т� го . с � г� о� й 9��� Ф < � О � 'О < О' < � 7 < < .w Oi г� д и G� и Ф Ф � � Oi Ф ^7�" � .n+ Ф '� а Ф и.. 7 р � < 9 •,� ш Э р < и � ге и г� �� о и т � г,' ,с� � о� 0) � м !� � с и � < 01 р1 „��, � м h о� � о� о' °-: � » � гfD, � �. й т о� о о о г�о о о д� д, � � о 3 01 � о �� с а Q а с �' �� ~' 3 о � й'� 'т ° д о й n� а и о с �� 3 и � Q Q ,... ср ^ й й�. n Ф• т � гi � j Q л 7 ry�� Q р 7 � о� � �р Ф т^' и О и Ф l9 р Ф (D •р и'�• N 3 м 3 3� и fD т N j и 7 и . � .` "� Ф Q_ Ф � -� о С �� � Х Х Х � S �• � � ° 3 а С с � т � r. � О т 7 С �t � � Х Х Х Х Х Х Х � Х Х � Ф " Х Х Х Х Х Х Х Х Х W .� � 3 � Ф 7 г+ fA С � 7 х х х Q х � х х р х � х � р � г � г т с�а ххххх х � �� х х х х х х n � �т � � ы� �� ,_ Part 11 Table 2 Uganda Fourth Education Project Table 2: Related Bank Credits .. ....... .. .. g g* IRZ. M..' X Past !21!erafions Education III (Cr. 1329), The project assisted in rehabilitating primary, secondary, 1983 Closed US$32 million technical schools and, to a lesser extent, the University. 12/88 The project provided educational materials such as textbooks, instructional materials and equipment for about 5,200 primary schools, about 177 secondary schools, and 33 teacher training and vocational institutions. The project also provided library books and professional journals to the University, in addition to the rehabilitation of a number of residence halls. The Completion Report for the project, undertaken by the UNESCO Cooperative Program, noted that in spite of political instability and persistent security problems during the period of project implementation, much of the materials procured under the project reached the schools and provided an important, though temporary, uplift to the education system. 2!y,oinj !3!eradons 1. An education The project will rehabilitate 4,200 primary school 1990 On- component in classrooms in 12 poorer districts going; Alleviation of Poverty Closing and Social Costs of 9/30/95 Adjustment Project (Cr. 2008-UG) 2. An education The project will help (a) integrate teacher education of 1992 On- component in 3,000 primary school teachers, (b) improve technical going; Northern training, and (c) rehabilitate 1860 primary school Closing Reconstruction Project classrooms 9/30/97 (Cr. 2362-UG) 3. Primary Education The project will help (a) improve primary school teaching 1993 On- and Teacher and management, and (b) strengthen strategic functions of going; Development Project MoES, e.g., policy analysis, management and Closing (Cr. 2493), implementation. 6/30/00 I I I L__J Part II Table 3 Uganda Fourth Education Project Table 3 Project Timetable Identification (Executive Project Summary) January, 1987 Preparation November, 1987 December, 1987 Appraisal May, 1988 May, 1988 Negotiations September, 1988 September, 1988 Board Presentation November, 1988 November 15, 1988 Signing December 9, 1988 December 9, 1988 Effectiveness February 1989 May 12, 1989 Change to the Development Credit Agreement March 9, 1992 Textbook Revolving Fund Pilot mid-term review June 30, 1991 July, 1991 Project Completion December 31, 1993 December 31, 1993 Closing June 30, 1994 June 30, 1994 Part II Table 4 Uganda Fourth Education Project Table 4: Credit Disbursements, Estimated and Actual SAR Estimates Actual Actual Cum. Yr/Quarter Quarterly Cummul. Quarterly Cummul. as % of (US$ millions) (US$ millions) Total Credit FY89 Q3 2.20 2.20 0.00 0.00 0% Q4 2.40 4.60 2.25 2.25 10% FY90 Q1 2.20 6.80 0.60 2.85 13% Q2 2.00 8.80 0.66 3.51 16% Q3 1.30 10.10 5.02 8.53 39% Q4 1.60 11.70 1.53 10.06 46% FY91 Q1 1.30 13.00 2.06 12.12 55% Q2 1.50 14.50 1.60 13.72 62% Q3 1.30 15.80 0.61 14.33 65% Q4 1.10 16.90 0.65 14.99 68% FY92 Q1 0.90 17.80 0.40 15.39 70% Q2 0.90 18.70 0.00 15.39 70% Q3 0.70 19.40 0.48 15.87 72% Q4 0.60 20.00 0.27 16.14 73% FY93 Q1 1.10 21.10 0.11 16.25 74% Q2 0.90 22.00 0.09 16.35 74% Q3 0.24 16.59 75% Q4 0.13 16.72 76% FY94 Q1 0.09 16.81 76% Q2 0.13 16.94 77% Q3 -1.30 /1 15.64 71% Q4 0.00 15.64 71% SAR Estimates and Actual Disbursements ) 25.00 - 20.00 041, ¶ ) 0.00 .0.~ 5.00 0.00 1 1 iI . 1 3 5 7 9 11 13 15 17 19 21 Quarters I SAR Estimates M Actual Source: LOAAF 1/ For the final recovery of the initial deposit into the Special Account. Uganda Part II Fourth Education Table 5 Table 5: Key Indicators for Project Implementation Unit Estimated Actual Performance Rate /5 I. KEY IMPLEMENTATION INDICATORS IN SAR /1 Provision of Instructional Materials primary schools (and 65 PTCs) number 3,400 3,470 102.1% textbooks and teacher guides number 3,326,100 3,534,936 /2 106.3% textbook expenditure US$ 7,680,000 5,681,439 /2 135.2% textbook consolidation US$ 3,000,000 1,480,600 202.6% Textbook Revolving Fund Pilot textbooks/teacher guides number n.a. 136,967 /4 n.a. districts number 4 4 100.0% schools number 800 621 77.6% parental contribution USh. 216,000,000 116,224,384 53.8% government contribution USh. 216,000,000 188,514,451 87.3% total collected USh. 432,000,000 304,738,835 70.5% II. MODIFIED INDICATORS /6 Rehabilitation of Education Facilities PTTC reconstruction/rehabilitation number 2 0 0.0% construction of schools number 50 0 0.0% reconstruction/rehabilitation of schools number 75 0 0.0% 1/ As no performance indicator Table was provided in the SAR or President's Report, these have been assembled from targets mentioned in various parts of the SAR. 2/ Including topping up of the stock for TPP schools. 3/ These were procured with Education IV books and financed with IDA credit. 4/ Textbooks financed with the Textbook Fund; IDA estimate in the absence of substantiation by the Borrower. 5/ Where cost savings have been realized, the performance rate is calculated as the reciprocal of actual as % of target. 6/ Modified to utilize project cost savings; DCA was amended as of March 9, 1992, to include a rehabilitation component. Part 1, Table 5 Part II Table 6 Uganda Fourth Education Project Table 6: Key Indicators for Project Operation Wroject impact to be Foihnv*qp actions being taken Iss Emrniag Actions PI2amd Sustainable funding of * IDA's Education V provides US$1.2 * a mechanism for sustainable * a study tour for Ugandan experts (FY95), textbooks million. repleshment *book use survey and book market study; possibly a * USAID's SUPER is to provide * development of a book market. household survey on textbook use and funding (FY96), US$25.0 million for textbooks and instructional materials, * increased exposure of teachers * design and implementation of a new Textbook Fund and parents to newly available pilot (FY96), * under IDA V and SUPER, textbooks. textbooks are procured based on the * IMU to encourage privately operated book mobiles, textbook needs identified by stocked with MoES approved books and instructional schools. materials, to tour the country (FY96). * teachers are trained in textbook to maximize the textbooks' impact on students' learning; Continued updating of the * Education V continues to finance * a locus for initiatives for * a reading room within MoES headquarters is being set stock of knowledge of the pre-investment studies which are to studies and policy analysis as up to function as a depository for studies on the education sector and be the vehicle for needs arise, education sector and other reference materials to be analysis of its maintaining/updating the stock of made available to Ministry staff and researchers (FY95). development, knowledge and to provide the * a depository for all the studies analytical basis for follow-up on Uganda education and other interventions in the sector, reference materials for the benefit of future research. Part II, Table 6 Uganda Fourth Education Project Table 7: Pre-Investment Studies ......... .N. ................ .. .............. Studies Carried Out Under Education IV 1. "Financing and Efficiency of Education in External & Review recommendations of previous studies, Study sensitized the Ministry to the cost implications Uganda," by V. Levine and C. Sentongo, local propose a financing system for education system of proposals, the need for cost sharing, and provided completed 12/90. without having to rely heavily on external assistance. unit cost estimates on which to base school charges. 2. "Books and Instructional Materials in External & Investigate the cost-effectiveness, quality, reliability Study provided an analysis of local publishing and Uganda" by C. Denning and D. Sentamu, local and speed of local publishing and printing in printing capacity. Together with two other studies, it completed 3/91. comparison with alternatives abroad. provided the information required for MoES to design a new National Instructional Materials Policy in 1993. 3. "Science Education in Secondary Schools in Local Science education in secondary schools Study provided basic information for further studies Uganda" by J.O. Ilukor, J. N.Mulemwa, and under ADB II and PETDP. P.J.M. Ssebuwufu, completed 12/90. 4. "Teacher Education in Uganda 1990-2000" External & To identify the major issues and problems of teacher Study laid the foundation for Teacher Development by D.B. Evans and C.F. Odaet, completed 3/91. local education, assess demand and supply of teachers, and Management System (TDMS). design a framework for a national system of teacher training and upgrading. 5. "Technical, Business & Vocational Local To identify the issues and explore solutions for Study provided background information for developing Education in Uganda" by Target Engineers and improving technical, business and vocational a Five Year Investment Plan and for developing a Associates, completed 12/90. education in Uganda. Technical Colleges Rehabilitation Project for OPEC funding. 6. "Design of Standard Accounting System for Local To improve financial management in primary The report was used as a resource in drawing up head Primary Schools in Uganda" by Serefaco schools. teacher management training materials and a handbook Consultants Ltd., completed 1/91. for school management which will be introduced through TDMS. Table 7: page 1 of 4 7. "Design of National School Mapping External & To identify' school mapping work to be carried out. Identified school mapping work to be implemented by Project" by Q. Khan and FO 0 Passi, completed local PETDP. 3/91. 8. "Reform of Public Examination System in Extermal & To evaluate the proposals of the White Paper. The study identified weaknesses in the system and Uganda " by V. Greaney and D.L. Ongom, local provided an outline for the examination reform completed 12/90. component of PETDP. 9. "Education Management Training in External & To plan intervention to address weaknesses in Materials in the study, borrowed commonwealth Uganda" by J.S. Carpenter, R.L. Smith, J.B. local school management. training, were in turn borrowed by TDMS for its Farrell, and J.L. Nkata, completed 7/91 management training program. 10. "Projections of Enrollment and Resource External To develop a model for projecting future enrollment Study provide a bsis for estimaig needs of Five Year Requirements for Primnary and Secondary and to provide the basis for estimating teacher Investment Program. Education 1990-2000" by A. Nazareth, demand. completed 4/91. 11. "Special Groups, Orphans, and Gilted" by Local To propose programs and policies to provide special Programs and policies proposed by the study were K. Namnuddu, A.J. Sebina Nalwanga, and J. recognition and support to the education of the incorporated into the Five Year Investment Program, Sengendo, completed 6/91. special groups. but has not been able to obtain funding for _________ iplementation. 12. "School Construction Programme" by J.H. External To provide cost data for the school construction Importance of staff housing for retention of quality Wyles, completed 4/91. component of the Five Year Investment Program and teachers highlighted. The study provided a costing basic data for PETDP. framework. 13. "Institutional Strengthening of the Project External To study the proposed expansion of PIU to handle Organizational structure proposed for the PIU and job Implementation Unit" by A.S. Jemberie, additional projects. descriptions for key positions have been taken up by completed 7/90. PETDP/SUPER. 14. "Science and Technology Equipment External To develop a five year investment plan for STEPU. Large scale expansion of STEPU envisaged in the Production Unit, STEPU" by Target Engineers study has not yet obtained funding. and Associates, completed 4/91. Table 7: page 2 of 4 15. "Non-formal Education in Uganda" by Local To review the White Paper recommendations and Various literacy pilot programs proposed by the study Kebbede Mammo, completed 5/91. design a pilot projects for inclusion in the Five Year are being implemented outside MoES. Investmaent Plan. 16. "Radio Education in Uganda 1992-1997" External To assess feasibility of the use of radio in non- Radio education has not been included in subsequent by S. Leighs, completed by 5/91. formal education, teacher education, and English progranms. Language teaching. Studies Ident4ied in Education IV but not Carried Out 1. Analysis of Civil Seirvice Census. Make more rational use of Civil Service manpower; analyze discrepancies between the numbers employed and numbers paid; propose measures to eliminate these discrepancies; examine functions and structure of MoES, its working relations, and recommend ways to improve these relations. 2. Feasibility Study on Water Provision to Propose lasting and practical solutions to the water Rural Primary Schools. supply problems, in particular when electrical power is absent. 3. Employment of Expatriate Ugandans in the Explore ways and means to revive the interest of Ministry of Education. expatriate Ugandans to serve again in the teaching profession of their country. Table 7: page 3of 4 4. Other Studies. Other possible studies were Not carried out because (a) major issues being (a) optimum enrollment to particular curriculum to addressed in the White Paper on Education and/or (b) ensure economic viability of institutions, especially the subject matters were no longer regarded as prionty TTCs and Technical Schools; issues. (b) measures to reduce the oversegmentation of primary school syllabus; (c) ways to limit over-specialization of secondary school teachers; and (d) strategy for the phasing out of boarding facilities and other forms of student subsidies or for gradual introduction of fees to recover the full costs for these services. Table 7: page 4 of 4 Uganda Part II Fourth Education Project Table 8A Table 8A: Project Costs (US$ millions) Appraisal Estimates Actual Project Components Loal Foreign Total Local Foreign Total Costs Costs Costs Costs Costs Costs 1. Primary School Improvement (a) Textbooks 0.00 6.43 6.43 0.00 5.22 5.22 (b) Instructional materials and 0.10 2.48 2.58 0.00 3.68 3.68 equipment (c) Shipping & consolidation 0.00 3.00 3.00 0.00 1.48 1.48 2. Instructional & Policy Development (a) Textbook Pilot Project 0.00 1.25 1.25 0.00 0.89 0.89 (b) Vehicles, Motorcycles & spare parts 0.00 0.13 0.13 0.10 0.60 0.70 (c) Technical assistance 0.12 1.05 1.17 0.00 3.45 3.45 (d) Training abroad 0.00 0.29 0.29 0.00 0.09 0.09 (e) Workshops & seminars 0.51 0.06 0.57 0.13 0.07 0.20 (f) Incremental operating costs 3.17 0.35 3.52 0.62- 0.30 0.92 3. Project Preparation Facility 0.03 0.28 0.31 0.00 0.25 0.25 4. Civil Works and Furniture 0.00 0.00 0.00 0.00 0.21 0.21 5. Total Base Cost 3.93 15.32 19.25 0.85 16.22 17.08 Physical contingencies 0.39 1.58 1.97 0.00 0.00 0.00 Price contingencies 4.89 1.34 6.23 0.00 0.00 0.00 Total Project Cost 9,21 1824 27.45 0.85 16.22 17.08 SAR Estimates Actual E67 4 E67 3 3 2 1 2 1 Legend 1. Textbooks, instructional materials, and 4. Incremental operating costs their shopping/consolidation 5. Pre-investment studies 2. Vehicles, motorcycles and spare parts 6. Project Preparation Facility 3. TA, training, and workshops 7. Civil works and furniture Part II Table 8B Uganda Fourth Education Project Table 8B. Project Financing SAR Estimates and Actual (US$ millions) SAR Estimates Actual Expenditure Category Govern't IDA Total Govern't Parents IDA Total 1. Textbooks 0.000 7.680 7.680 0.226 0.194 5.681 6.101 2. Instructional Materials and office and 0.000 2.580 2.580 0.000 0.000 3.679 3.679 teaching equipment 3. Overseas shipping and consolidation 0.000 3.000 3.000 0.000 0.000 1.481 1.481 4. Vehicles, motorcycles and spare 0.000 0.250 0.250 0.100 0.000 0.596 0.696 5. Technical assistance 0.000 1.580 1.580 0.000 0.000 3.450 3.450 6. Training Abroad 0.000 0.280 0.280 0.000 0.000 0.087 0.087 7. In-country Workshops and Seminars 0.300 0.270 0.570 0.130 0.000 0.065 0.195 8. Incremental operating costs 3.000 0.520 3.520 0.624 0.000 0.298 0.922 9. Project Preparation Facility 0.000 0.310 0.310 0.000 0.000 0.254 0.254 10. Civil works and building materials 0.000 0.000 0.000 0.000 0.000 0.211 0.211 11. Furniture 0.000 0.000 0.000 0.000 0.000 0.002 0.002 12. Unallocated 2.600 5.530 8.130 0.000 0.000 0.000 0.000 Total Project Costs .5.900 22.000 27.900 1.080 0.194 15.804 17.078 Source: Mission estimates based on PIU data for Government/Parent financing and WB LOAAF for IDA financing. 1/ Estimated as residual. (file:TBL8B.XLS) Uganda Part II Fourth Education Project Table 9 Table 9A: Cost-Effectiveness Textbooks -average unit cost ofprinting 2.17 1.61 2.28 1.61 -29.29% Consolidation and delively cost per book 1.10 0.46 1.15 0.46 -60.14% .. I.II.II.II 1/ In 1988 dolllars; these are adjusted by a factor of 1.04920, using MUVY indenx for developed countries to bring them to 1990 prices. 2/ In 1990 prices. On the textbook component, which accounts for 66 percent of total project expenditures, the project was cost-effective (Table 9A above). Both textbook procurement and consolidation/delivery were achieved at substantial savings, much below the SAR estimates (Table 9A above). Higher initial investment for higher specification books, with additional investments for improved storage and book management, to achieve longer average book life was a cost effective decision for the project. The alternative would have been to opt for lower quality at a lower initial investment (US$1.0 million) but which would have resulted in a shorter average book life. When the costs are annualized over the expected book life, the cheaper option comes out costlier (Table 9B) than the higher specification option by US$363,000 annually and by more than US$1.8 million over 5 years, if the books are to be replenished after their average life. Sensitivity analysis (Table 9B) shows that in order for lower specification/shorter lasting books to match the lower annualized cost of higher specification books, they must be produced at US$0.96, US$0.64 and US$0.32 for books lasting three, two and one year(s), respectively. Table 9B: Savings Realized from Longer Book Life Higher specification 5 215,940 3,245,307 5 1,043,188 1 61 Lower specification 4218,899 3,245,307 3 1,406,300 1.30 Savings 997,041 -363,112 Sensitivity Books lasting 3 years 3,129,564 3,245,307 3 1,043,188 0.96 Books lasting 2 years 2,086,376 3,245,307 2 1,043,188 0.64 Books lasting 1 year 1,043,188 3,245,307 1 1,043,188 0.32 1 / Average unit cost which must be achieved by lower quality books in order to break even with higher specification books. Uganda Fourth Education Project Table 10: Status of Legal Covenants DCA Descriptio Covenant Co en at Present Original Actual Comments Reference tpe ntats date date Article III The Borrower shall, on a quarterly basis, make available to Counterpart CP n.a. Delays and shortfalls in counterpart funding experienced throughout the project. pars. 3.01(c) MoES, for use by PlI, such funds in Uganda shillings, as are funding estimated to be required by PIU in the following three-month period to cover expenditures which are not to be covered by withdrawals from the Credit Accounts Article III The Borrower shall submit to the Association, for its review, a Sector policy CD 12/31/89 4/92 IDA agreed to Government's request (November 27, 1990) for postponement of para. 3.03 satisfactory action plan to eliminate the discrepancy between the conditionaliry submission of action plan until the Teacher Establishment study of Public number of primary and secondary school teachers actually Service and Cabinet Affairs is completed. Government has carried out census of performing teaching duties and the number of teachers on the MoES stall, computerized all teachers payroll, decentralized payroll payroll. administration, and headcount of all teachers were carried out by the Public Service Ministry. Article III The Borrower shall submit to the Association, for its review and Sector policy CD 12/31/90 2/93 Number of PTC's reduced from 103 to 67; the agreed minutes of negotiations para. 3.04 comments, an action plan to:(a) ensure that the level of conditionality for the follow-up PETDP project indicates that it was agreed that an analysis of enrollment at primary school teachers training colleges is cost- fixed and variable PTC costs would be carried out and that the government effective; and (b) improve the ratio of school-size to number of resources and IDA assistance should be concentrated on instructional facilities subjects offered at secondary school teachers' training colleges and not boarding. and technical and vocational institutions. Article IV The Borrower shall: Accounting, C n.a. n.a. Account opened with Grindlays Bank (U) Ltd. (7/5/89) pars. 4.01 audit (a) maintain or cause to be maintained records and accounts Audit reports recevied on: adequate to reflect, in accordance with sound accounting * SOEs and Special Account (FY90, FY91, FY92, FY93), practices, the operations, resources and expenditures, in respect * Textbook Fund accounts (FY91, FY92) of the project, of the departments or agencies of the Borrower responsible for carrying out the project or any part thereof, and (b) The Borrower shall: (i) have the records and accounts referred to in paragraph (a) of this Section, including those for the Special Account and the TF for each fiscal year, audited, in accordance with appropriate auditing principles consistently applied by independent auditors acceptable to the Association; (ii) furnish to the Association, as soon as available, but in any case not later than six months after the end of each year, a Table 10: page 1 of 4 DCA, Ie=crption of Covenant Covna Preset Orlinal Actual Co ts RefereCe t staes dame date Aricle IV certified copy of the report of such audit by said auditors, of pars. 4.01 such scope and in such detail as the Association shall have (continued) reasonably requested and (iii) fRunish to the Association such oiler information concerning said records, accounts and the auditthereof as the Association shall from time to time reasonably request. c) For all expenditurcs with reaped to which withdrawals from the Credit Account were made on the basis of statements of expendiure, the Borrower shall: (i) maintain or cause to be maintained, in accordance with paragraph (a) of this Section, records and accouts reflecting such expanditures (ii) retain, until at least ane year after the Association has received the audit for the fiscal year in which the last withdrawal from the Credit Account was made, all records (contract, orders, invoices, bills, receipts and other documents) as evidence of such expenditures, (iii) enable the Associaticot represutatives to eamine sich records and (iv) ensure that such records and accounts are included in the annual audit referred to in paragraph (b) of this Section anl that the report of such audit contains a separate opinion by said auditors as to whether the stalemns of xpenditure submitted during such fiscal year, together with the procedures and internal contols involved in their preparation, can be relied upon to support the related withdrawal Schedule 4 In order to facilitate the proper implementation of the Project, Project C na. n.a. PIU has been maintained fully staffed for the entire duration of the project. pars. 1 MoES shall continue to maintain PIT with overall responsibility implementa- for the management and coordination of all Project activities, tion PRs staff shall include a Director, an Advisor to the Director, a Deputy Director, a Procurement Manager, a Distribution Manager, an Accountant, and an adequate number of support staffwhose qualifications shall be satisfactory to the Association. Schedule 4 In order to assist PIU in the implementation of the Project, Project C na. na. Services of the firm which procured TA for Education III were retained for para. 2 MoES shall, as and when required, employ technical assistance Implement- Education IV In addition to retaining the Project Coordinator and staf who shall form part of PIU. ation Accountant from Education III, the project procured a 2-year TA for the Inspectorate and a Procurement Casultant on a short-term basis. Table 10: page 2 of 4 .. ........... Kan . ..... Schedule 4 PIU shall prepare and submit to the Association, semiannual Project C n.a. n.a. Progress reports were received. para. 3 reports on the progress of implementation of all Project Implement- activities, and, promptly after the completion ofthe Project the ation Project completion report referred to in Section 9.06 of the General Conditions. Schedule 4 With the assistance ofa suitably qualified consultant, MoES Cost recovery CP n.a. n.a. (a) arrangements were made, extensive campaign was carried out to educate the par. 4 shall take appropriate steps to launch a Textbook Fund (TF), financial, teachers and local officials, but supervision and accountability were difficult; with annual contributions from parents, communities and monitoring & MoES, for the purchase of books and instructional materials to evaluation, (b) the Government did make foreign exchange available for TF, but was slow to be used by schools in four districts selected by MoES on the and counter- meet its obligation for providing matching fund, basis of selection criteria satisfactory to the Association. MoES part funding shall submit to the Association, for its review and comments, a (c) monitoring of TF was weak; and detailed plan for the operation of TF including: (a) specific arrangements for the collection of TF funds (d) the level of Borrower contribution to TF fell 12.7 percent below commitment. (b) arrangements to be made between MoES, MOF and the Bank of Uganda under which MOF shall ensure that adequate foreign exchange shall be made available to MoES for the acquisition oftextbooks and educational materials with TF funds; (c) specific criteria for monitoring progress during the implementation of TF; (d) the level of the Borrower's contributions to the TF Schedule 4 MoES shall carry out an evaluation of the pilot scheme to: (a) Monitoring & CD 6/30/91 12/91 Outside consultants carried out a detailed mid-term evaluation of the TF project; parm. 5 determine the extent of success of the scheme, including an evaluation Evaluation report submitted to IDA. assessment of the underlying causes; (b) verily that all schools which make contributions to the scheme actually receive their entitlements; and (c) recommend appropriate modifications to the operation ofthe scheme. Schedule 4 MoES shall carry out a second (final evaluation ofthe scheme Monitoring & CP 8/31/93 Ongoing A committee was set up for the purpose of redesigning the Textbook Project and para. 6 and, subject to the result of such evaluation, make appropriate evaluation a submission presented to the Permanent Secretary. Meanwhile, Textbook recommendations. The Association shall be afforded an Policy has been assumed by the new Instructional Materials Unit established in opportunity to review and comment on such recommendations. PU under Cr. 2493. (Was the final evaluation actually carried out?) Table 10: page 3 of 4 DCA Description of Covenant Covenan Presen Original Actual Comaents Reference type status date date Schedule 4 MoES shall, with the assistance of a suitably qualified expert: Institutional C n.a. n.a. (a) detailed plan submitted (November 22, 1989); pars. 7 (a) prepare a detailed plan, including a work program and strategy, satisfactory to the Association, for improving and (b) detailed series of workshops, seminars and training carried out; strengthening the Inspectorate; (b) organize and conduct workshops, seminars and training (c) guidebooks approved by IDA; printing to be undertaken under Cr. 2493; programs for inspectors at the district and regional levels; (c) prepare suitable handbooks and guidelines for the use of (d) control of vehicle use and maintenance remained weak; short on operating inspectors, teachers and headmasters; and costs to run the vehicles. (d) strengthen the system of vehicle use of maintenance. Schedule 4 MoES shall submit to the Association, for its review, a three- Institutional CD 9/30/89 11/89 Three year work program received; Inspectorate performance report, update of paraS year work program for the period beginning July 1, 1990, and the work program, and training program received each year. ending June 30, 1993, satisfactory to the Association, and, by September 30 of each subsequent year, submit a performance IDA recommended integration of the Inspectorate with TDMS (October 28, report for the preceding fiscal year and an updated work 1991). program for the following fiscal year. Schedule 4 MoES shall, with the assistance of consultants. if required, carry Studies and C n.a. n.a. In total, 16 studies have been carried out under the project (see Table 7). para. 9 out studies for: technical (a) implementation policy measures resulting from ongoing assistance Five Year Education Sector Program was prepared (May 1991), donor meeting assessments of the education sector; held to discuss the program (June 1991), a subsequent sector operation was (b) carrying out Project activities; and prepared and became effective. (c) preparing for a subsequent sector operation Table 10: page 4 of 4 Part H Table 11 Uganda Fourth Education Project Table 11: Compliance with Operational Manual Statements OD 10.60 Paras. 26-27 of OD 10.60 state that, as a minimum, financial reports should normally Accounting, comprise a statement of receipts and payments, as well as total project costs and sources of Financial financing, and that the supporting schedules of statements should disclose annual and Reporting, and supplemental budget allotments, actual expenditures under each budget category for Auditing which Bank financing is furnished, and the actual expenditures and amounts of Bank disbursements claimed. In short, financial reporting should cover all accounts pertaining OD 13.10 to project expenditures, irrespective of sources of financing. Borrower Compliance with For Education IV combined audits reports for SOEs and Special Account and audit Audit Covenants reports for the Textbook Fund Account were submitted. No audits were submitted on Financial Statements or Project Account, largely due to lack of clarity in the SAR and DCA on what was expected of the Borrower to fulfill the financial covenant. IDA did not pick up on this deficiency during supervision. Therefore, compliance with OD 10.60 and OD 13.10 has been only partial OD 6.30 The Bank usually expects the Borrower to contribute 10 percent minimum (net of taxes Local Cost and duties) to the project to demonstrate its commitment. In exceptional cases, however, Financing and Cost such as strained government finances, the Bank allows lower borrower contribution Sharing Borrower's contribution of 7.5 percent of total project cost falls substantially below the level anticipated at appraisal, but SAR's expectations were unrealistic, given the weak government financial position then. Part II, Table 11 page 1 of 2 Part II Table 12 Uganda Fourth Education Project Table 12: Bank Resources: Staff Inputs Stage of Plamned Revised Actual Pmject Cycle Weeks US$'000 WeG USS'0 WeeI USS'o Preparation to Appraisal 0.0 0.0 0.0 0.0 24.6 73.8 Appraisal 10.0 30.0 4.0 12.0 6.9 20.7 Negotiations through Board 6.0 18.0 12.5 37.5 11.1 33.3 Approval Supervision 82.0 246.0 96.9 290.7 52.2 156.6 Completion 11.0 33.0 11.0 33.0 9.5 /1 28.5 Total Project Costs 109S0 31itO4 13 104.3 3 129 1/ Estimated Memo: Assumes average cost of US$3,000 per staff week Part II Table 13 Uganda Fourth Education Project Table 13: Bank Resources: Missions Stg of NDays Staf Spe::a:ized.:erforr.m rating ypes.... ofpobems Project Cyde mmlyy of Peans in Field weeks SkEs Represetqd Impementain Deveopment identifled Status Oblectve Up to appraisal Appraisal to Board n.a. (i) Government's new decision that all TA staff should pay taxes held Board to up signing of TA contracts; (ii) Effectiveness Nov-88 1 14 2.0 Educator delays in identifying and recruiting an experienced Ugandan deputy director for the PIU. Supervision (i) Agreed to procure motorcycles for the inspectors immediately; (ii) NCDC to re-orient its focus away May-90 1 17 2.4 Educator HS HS from textbook printing and toward improving locally developed textbook manuscripts. (i) Low participation rate in TPP and poor accountability; (ii) severe cuts in counterpart funding as part of the Government's measure to control Aug-90 1 4 0.6 Educator HS HS inflation; (iii) did not endorse proposal to set up a textbook procurement unit under the PIU. Table 13, page 1 of 2 Stg 4if Nubet Days Stf ec*d Tp.opblm noijict Cycle mmlyy of Pervons in Fiel6 weeks skills nepre,ented knpementation D6 topint identie . status ob_e 1_____ ___..._..._____ (i) Inspectorate work program proceeding behind schedule due to a lag in the recruitment of new Apr-91 1 7 1.0 Educator HS HS inspectors; (ii) move NCDC away from printing to developing textbook manuscripts; (iii) M&E for TPP; (iv) costed proposal for utilizing unallocated funds. (i) Training proceeding well, but office equipment and handbook preparation lagging, need to Mar-92 1 9 1.3 Educator continue to strengthen the Inspectorate; (ii) proposal for redesigned TPP expected; (iii) close collaboration needed between the (i) Major problems with civil works design bid evaluation; and (ii) Educator, covenant compliance outstanding on Feb-93 3 16 2.3 Implementation- S S 3.03, 3.04(a) and (b). Suggested Specialist, Economist' that 3.04(b) be dropped as similar work is being undertaken under Education V. (i) Civil works component at Bushenyi and Gulu delayed, and funds for this construction mostly Sep-93 1 1 0.1 Implementation S S likely to be only partially used by Specialist project closing; PIU requests extension of the project closing by one year. Feb-94 1 12 1.7 Implementation S S None Specialist (i) Unexplained local expenditure of US$2.33 million on textbooks; (ii) a Textbook Specialist, large divergence between expected Completion Nov-94 3 14 5.0 Program Officer S S pupil to textbook ratios and (Resident Mission), observations in the field; and (iii) a Economist serious shortfall in counterpart funding. Table 13, page 2 of 2 Appendix A Page 1 of 3 UGANDA EDUCATION IV IMPLEMENTATION COMPLETION REPORT (CR. 1965-UG) DRAFT AIDE MEMOIRE (February 21, 1995) 1. A Bank ICR mission consisting of Tony Read (consultant), Harriet Nannyonjo (National Program Officer, World Bank Resident Mission, Kampala) and Young Kimaro (Task Manager) visited Uganda in November/December of 1994 to prepare the Bank's assessment of the recently completed Education IV project. At the wrap up of that mission, the Government expressed the view that the draft ICR largely provided a fair representation of project experience. All the outstanding issues raised by the mission then and subsequently after its return to Washington, have been clarified and resolved. Comments received from the Government during the December mission were taken into consideration in the revised ICR, presented to the Government for comments early February 1995. This Aide Memoire summarizes the discussions the Task Manager has had with the Government on the report and the understandings on the revised ICR on a subsequent visit to Uganda. The discussions benefited from the institutional memory provided by Mr. Shay O'Byrne, the TA Project Accountant at the PIU. The draft Aide Memoir is subject to endorsement by the Bank management. Textbook Pilot Project TPP) 2. It was explained that the reasons for discontinuing the Textbook Pilot Project were not due to the reluctance of the PIU to share the responsibility with other departments of the Ministry. To the contrary, the PIU had agreed that the Inspectorate take the lead and that the EPU and the Inspectorate draw up a proposal for restructuring the TPP. This task, unfortunately, was never completed, leading to the decision to drop the TPP. The mission was provided with invoices for the TPP textbook imports, thus eliminating the need for guestimates on TPP expenditures. The mission agreed to revise the text to reflect the new information provided. Counterpart Financing 3. The US$2.34 million stated as Government expenditure on textbooks was an error; according to Government it should have been entered against the Textbook Pilot component. It was explained that Government's estimate of US$3.6 million was arrived at by applying the exchange rate prevailing at the time of project appraisal. The ICR, on the other hand, used monthly average exchange rates over the project period, yielding US$1.3 million equivalent total in Government and parental contributions, the large discrepancy between the two estimates being due to the rapid depreciation of Ugandan shilling from USh. 150 at the time of project appraisal to USh. 1,218 to one US dollar in April 1993. Applying the appraisal exchange rate to total USh. 961,587,194 yields US$6,410,600, overshooting the Government's estimate. 4. The Government expressed concern over implications of the shortfall in its contribution, from the expected 21 percent of the project expenditures to 7.5 percent. While IDA encourages Borrowers to contribute at least 10 percent of investment costs to assure the Borrowers' commitment, this minimum rate is applied for the country as a whole and not to each and every ARpendix A Page 2 of 3 investment, and allowances are made for exceptional cases when Government comes under severe financial constraints, as was the case with Uganda when the project was being implemented. What it does imply is that the Bank was overly optimistic and did not adequately take into account the financial status of the Government. Consequently, there was a severe shortage of funds to meet the field operating costs of the Inspectorate. Audits 4. It appears that the language used in the SAR and the DCA on financial covenants was not sufficiently clear to the Borrower on what was expected from the Borrower to fulfill financial covenants. Throughout the project period, the Government was also led to believe audit reports on the textbook fund and a single audit report each year covering a statement of expenditure in support of withdrawal applications were in full compliance with the financial covenants of the Bank. The Bank was informed that the audit for 1993/94 had been completed and is awaiting clearance from the Accountant General's office. Future Operations 5. It was agreed that the PIU will prepare a preliminary action plan for (i) developing a sustainable mechanism for replenishing textbooks, and (ii) a book mobile scheme to expose the teachers and parents to available textbooks and instructional materials, and (iii) a depository of studies and other reference materials on education. Funds for the preparatory work for this may be provided from PETDP. * Study Tour. In April/May a team consisting of about four to five experts from Uganda will tour a number of neighboring countries that have been successful in replenishing textbooks and in developing book markets from which useful lessons could be drawn for Uganda. The study tour team should be broad based (including the Inspectorate and an expertise in finance), including those who will subsequently play a key role in the design and implementation of a textbook replenishment scheme. * Action Plan for Sustainable Textbook Replenishment. Following the study tour, a detailed, costed action plan will be developed by the IMU, in consultation with the Inspectorate, for designing and implementing a pilot scheme. * A Book Mobile Scheme. The IMU will actively encourage the private publishers to re- activate book mobiles, which were much in fashion prior to the civil unrest, to expose the teachers and parents to books that are now becoming available. As decisions on which books among those approved by the Ministry will be use in classrooms are left to schools, there is incentive for the publishers to reach out to schools and parents. * Book market study. As a precursor to drawing up a strategy for developing textbook markets, the study should focus on the current status and constraints in textbook market development. Special attention should be paid to the impact of the decentralization of Government, liberalization of textbook publishing and printing, textbook procurement practices, and general business environment which affects book shops. Appendix A Page 3 of 3 * Action Plan for a Library/Reading Room. For a depository of sector knowledge, the EPU and the PIU have agreed on a modest library/reading room. A costed plan will be prepared by the EPU for establishing and managing such a depository in which all studies and data pertaining to the education sector could be made accessible. Appendix B Uganda Fourth Education Project Appendix B An Executive Summary of' Borrower's Project Completion Report 1. The Project objectives in 1988 were to: (i) maintain the momentum of the borrower's educational rehabilitation efforts and ensure their sustainability; (ii) establish a revolving textbook fund; (iii) strengthen key Ministry institutions; and (iv) prepare a subsequent project to address Borrower's strategy for the education sector. 2. The Project provided: (i) textbooks, guides and instructional materials to 3,400 primary schools; (ii) established, on a pilot basis, a textbook revolving fund in 621 primary school; (iii) strengthened (a) the Ministry's inspectorate; (b) the National Curriculum Development Centre; (c) the Science and Technical Education Production Unit; and (d) the National Education Policy Review Commission, through consultancies, provision of workshops, supply of vehicles and equipment and study tour; (iv) carried our a series of seventeen major pre-investment studies and assisted in the preparation of the Ministry's Five Year Investment Plan (v) commenced on design work for new primary teacher's colleges (PTC); and (vi) expanded the capacity of the Project Implementation Unit. 3. All of the original objectives of the project, with the exception of some elements of the Inspectorate program, were completed by the first quarter of 1993 and US$ 7 mil remained unspent of the Credit funds. Plans to spend this on new PTC's and school facilities were not realized owing largely to delays in selecting consulting engineers. 4. Audited accounts were submitted promptly and the Special Account has been closed by refund of the undisbursed balance. All credit covenants have been complied with satisfactorily except for those two carried forward to the subsequent credit, re: teacher payroll and PTC enrollment/cost effectiveness. 5. The project can be regarded as successful in relation to meeting the immediate and urgent needs for instructional materials while preparing for a major reform of the primary education sector. 6. Evident weaknesses pertained to: (a) the textbook revolving fund; (b) Inspectorate outcomes; (c) construction unit under-staffing ; and (d) inadequate operating expenses support compounded by Government's economic reforms. It is encouraging to note however, that all the above have already been addressed in the subsequent credit. 1 Full report can be obtained from the project files. Appendix C Uganda Fourth Education Project Appendix C Cofinancier Contribution to ICR Not applicable - there were no cofinanciers for the project Appwdl D Chart Uganda Fourth Education Project Implementation Schedule 1. TEXTBOOK PROCUREMENT (a) Preparation of booklists xxxxxxx (b) Price negotiations with publishers xxx (c) Contracts awarded xx 2. BOOK CONSOLIDATION AND DELIVERY (a) Preparation of tender documents xxxx (b) Tender period xxxx (c) Contracts awarded xx (d) Book consolidation and shipping xxx (e) Books' arrival in schools xxxxx 444*. 3. EQUIPMENT PROCUREMENT (a) Preparation of tender documents xxxx (b) Tender period xxxx (c) Contracts awarded xx (d) Equipment consolidation and shipping xxx (e) Equipment arrival in schools xxxx 4. TECHNICAL ASSISTANCE AND FELLOWSHIP (a) Project management (PIU) X x xxxxxxxxxxxxxxe:x xxmx xx: xx i x x (b) Inspectorate xxxxxxxxxxxxxxxxxxI 5. TEXTBOOK REVOLVING FUND (a) MoES selects Districts xx (b) Consultant for Pilot scheme xxxx xxxx xxxx (c) Selection of Pilot schools xxx xxxxxxxxxxx xxxxx (d) First phase of Pilot scheme xxxx xxxx xxx Legend xxxxxxxx planned 4**0***0 actual Appendix D Table 1 Uganda Fourth Education Project Table 1: Pupils per Book Estimates S eGd Grade ra.. 3 Grad 4 Grad. 5 Grad. Grad 7 Based on National Statistics (1990) /1 English 2.9 2.5 2.8 2.4 1.6 1.3 0.7 Math 3.3 2.7 2.8 2.5 2.4 2.2 1.5 Social Studies 38.9 33.3 20.7 4.4 2.7 2.1 1.6 Science 24.3 18.0 4.2 3.2 3.0 2.5 1.8 Based on sdr o f 583,085 432,630 394,093 318,367 260,783 212,365 165,591 Student rolls of Based on IMU Survey (1993) /2 English 5.0 5.0 4.0 5.0 3.0 3.0 2.0 Math 4.0 5.0 5.0 6.0 5.0 5.0 4.0 Social Studies 13.0 18.0 19.0 15.0 13.0 13.0 11.0 Science 11.0 12.0 9.0 8.0 3.0 3.0 2.0 Based on sdr o f 4,253 3,906 4,209 4,102 3,748 3,645 3,032 Student rolls of Based on Random Count in Three Schools (1994) /3 English 8.0 n.a. 7.0 n.a. 7.0 n.a. 5.0 Math 10.0 n.a. 11.0 n.a. 8.0 n.a. 6.0 Social Studies 20.0 n.a. 18.0 n.a. 13.0 n.a. 10.0 Science 14.0 n.a. 13.0 n.a. 10.0 n.a. 8.0 Based on asen 220 n.a. 180 n.a. 120 n.a. 90 Student rolls of Note: 1/ This survey was conducted on approximately 100 schools. It is not known whether these were schools which participated in the TPP. Theoretically the pilot schools should be the best supplied schools in Uganda for textbooks because they have been supplied with textbooks and teachers' guides under Education III (1985), Education IV (1990) and with books purchased from the revolving fund (1991 and 1993). No other schools in Uganda have received this level of consistent support over the same period. 2/ These statistics and pupil:book ratios were derived from the 1990 MoES Planning Survey, the 1990 MoES/UNESCO Report and the MoES Statistical Abstract for Primary Schools 1989-1992. The ratios were compiled by a USAID consultant. It is not known whether the school book stocks were reported before or after the provision of textbooks to schools from Education IV in 1990. Neither the nature nor the condition of reported bookstocks is available from the statistics. Because school books are government property, most schools do not throw away damaged books with pages missing or badly torn, thus they may be included in these figures. Similarly, many schools have collections of very old and redundant books from a wide variety of different series, most of which are not used in class. There is no indication whether or not these redundant books have been included in the school count. Under the circumstances, with so much unknown about the origin of the statistics and ratios, these statistics must be treated with considerable caution. 3/ These indicators are based on a rough count of books in store cupboards, cross-checked with school stock books and with school enrollment figures obtained from visits to schools and conversations with headteachers during the WB PCR mission (November/December 1994). Appendix D Table 2 Uganda Fourth Education Table 2: Supply of Textbooks to Pilot Schools and Pupil Textbook Ratios Achieved Textbooks Supplied Pupils Pupil Subjects IDA TF Funded Total Enrolled Textbook Funded (1990) Ratio Maths 50,962 /1 93,467 /2 144,429 171,486 1.19 English 73,521 73,521 171,486 2.33 Science 77,022 43,500 120,522 171,486 1.42 Social Studies 59,517 59,517 171,486 2.88 Local Languages 28,607 28,607 171,486 5.99 Thte~ 9'''ag 289,6M; 1 36967 4268,598 7148:27 Source: TPP Evaluation Study (1991) amended with PlU data (1994). 1/ The TPP Evaluation Report (October 1991) gives this figure as 59,517 (See Table 8, Annex 1 of the Report). 2/ The TPP Evaluation Report, which was compiled 2 months after the delivery of this consignment to schools, records the total number of Math books supplied as 79,800 (see Table 8, Annex 1 of the Evaluation Report). Appendix D Table3 Uganda Fourth Education Project Table 3: Enrollment Changes in Textbook Pilot Project Districts Between 1989 and 1990 igange Masake Mindi Mubende ota District Total Enrollment in primary schools 1989 95,954 64,266 23,702 80,066 263,988 1990 78,358 62,711 38,735 75,547 255,351 Changes in enrollment -18.3% -2.4% 63.4% -5.6% -3.3% Pilot Schools Number of pilot schools in 1989 230 196 47 148 621 Enrollment in pilot schools 1989 89,899 66,912 11,666 58,960 227,437 1990 60,972 50,347 9,413 50,754 171,486 Changes in enrollment -32.2% -24.8% -19.3% -13.9% -24.6% Source: TPP Evaluation Study. Appendix D Table 4 Uganda Fourth Education Project Table 4: Primary School Enrollment 1989-90, 1992-93 1. Kampala 61,375 59,038 61,112 57,179 CENTRAL 2. Kalangala 2,983 1,373 1,792 2,052 3. Luwero 45,935 61,732 62,298 62,290 4- Maae646 2,71 7,570 8,9 5. Mpigi 139,096 115,089 122,331 123,831 7. Mukono 91,490 95,242 98,554 100,139 8. Rakai 64,235 46,473 79,761 79,897 9. Kiboga * 18,554 18,736 11. Jinja 40,011 40,551 52,851 39,510 12. Kamuli 46,818 49,853 41,383 57,266 13. Kapchorwa 19,277 20,696 20,001 23,023 14. Kumi 52,471 56,693 53,309 54,985 15. Mbale 133,402 148,857 145,712 137,101 16. Soroti 106,833 105,596 106,198 94,089 17. Tororo 152,459 137,411 91,280 82,457 18. Pallisa * 46,707 47,633 NORTHERN 19. Apac 83,313 81,872 80,077 81,584 20. Arua 119,293 123,161 125,726 111,680 21. Gulu 64,198 65,779 72,990 70,488 22. Kitgumu 66,710 74,533 80,887 61,657 23. Kotido 1,220 17,413 15,671 14,788 24. Lira 91,174 87,117 108,126 108,136 25. Moroto 9,029 8,610 7,870 8,654 26. Moyo 19,701 22,420 18,189 20,126 27. Nebbi 50,203 51,399 49,255 79,817 WESTERN 28. Bundibugyo 11,704 12,051 12,586 16,114 29. Bushenyi 109,946 110,613 106,616 103,574 30. Holma 119,890 80,672 33,457 37,892 31. Kabale 80,296 83,362 68,107 68,508 32. Kabarole 88,795 91,084 63,782 89,849 33. Kasese 40,218 37,058 41,890 39,767 $4 Wed 3O *7634,44S 3ø,447 35. Mbarara 117,457 83,451 129,576 120,289 36. Rukungiri 63,163 56,980 57,939 60,046 37. Kibale * 40,762 40,686 38. Kisoro • 20,626 20,626 39. Ntungamo * 27,637 Source: EPU/MoES. * New Districts Textbook Pilot Districts Appendix D Table 5 Uganda Fourth Education Project Table 5: Parental and Government Contributions to the Textbook Fund Auuerain . . . tes arpit* As h theru* of Ptechuse tihA ati*.-to Exobnge h :A0ount. US* Equivafent PtMt it' Pteel"ee Rafte 13 Parental contribution 1989 27,399,498 431.54 63,492.37 63,492.37 1990 54,712,336 545.65 100,270.02 163,762.39 1991 33,702,050 1,136.60 29,651.64 193,414.03 1,136.60 101,895 1992 410,500 1,268.75 323.55 1993 1,202.00 342 116,224,384 193,737.57 102,237 Government contribution 1989 27,258,423 431.54 63,165.46 63,165.46 1990 24,268,166 545.65 44,475.70 107,641.16 1991 113,512,764 /1 1,136.60 99,870.46 207,511.62 1,136.60 145,204 1992 23,475,098 1,268.75 18,502.54 1993 1,202.00 19,530 188,514,451 226,014.16 164,734 11 Interest rates provided by the PIU. 2/ Interest earnings on IDA credit account used for the purpose. 3/ Mission estimates, in the absence of information on actual dates of transaction. Source: PIU. Appendix D Table 6 Uganda Fourth Education Project Table 6: Number of Pilot Schoola by District and Rate of Parental Participation in TPP Based on Evaluation Study Enrollment Estimate (171,486) Iganga 230 63.12% 50.54% 57.79% Masaka 196 65.31% 41.56% 54.62% Masindi 47 41.21% 21.14% 31.85% Mubende 148 55.94% 31.13% 44.00% Total/averag 621 60.77% 40.55% 51 .67% Based on PIU Enrollment Estimate (240,284) Iganga 230 49.94% 29.43% 39.69% Masaka 196 58.30% 30.36% 44.33% Masindi 47 39.99% 17.93% 28.96% Mubende 148 55.11% 28.43% 41.77% Average 621 53.08% 28.94% 41 .00% Source: TPP Evaluation Study and PIU. Note: The four pilot districts continued to contribute fees after the closure of the pilot project. If these are added to the 1 989 and 1 990 totals, the gross collection rate increases from 51.67% to 60.95%. Appendix D Table 7 Uganda Fourth Education Project Table 1. Expected Counterpart Funding Based on Actual Project Expenditures (US$ millions) Cott" .'adfunino ProvtWion ..pndtt ..t .... Mchu UR ofDOCA: 'Expected Oiditk W". 0 bV Counterpart . : : :Cost. Cost Cos US$OOO). 1. Textbooks 0% 0.000 Textbook pilot 100% 0.420 2. Instructional Materials and office and teaching 20% 0% 0.000 equipment 3. Overseas shipping and consolidation 0% 0.000 4. Vehicles, motorcycles and spare parts 20% 0% 0.020 5. Technical assistance 0% 0.000 6. Training Abroad 0% 0.000 7. In-country Workshops and Seminars 50% 0.100 8. Incremental operating costs A. Institutional and policy development 70% 0.023 B. Other 85% 1.632 9. Pre-investment studies 0% 0.000 10. Project Preparation Facility 100% 0.254 11. Civil works and building materials 20% 0.000 12. Furniture 20% 0.000 Total Project Costs 1.449 1/ Based on actual local and foreign costs in Table 7A. (file:D2-TBL1.XLS) Appendix D Table 8 Uganda Fourth Education Project Table 2: Counterpart Fund Releases to Education IV VOUOele.ase Amount ExchangetM Atmout % <>ofIiIt USS EqUIYalen M ~D. Date (US.) Rate /1 (UIl.) V~oteds FY90 Oct-89 19,922,000 232 85,870.69 Jan-90 9,529,665 374 25,480.39 23,143,000 374 61,879.68 Mar-90 1,922,000 379 5,071.24 May-90 1,922,000 384 5,005.21 41,475,000 384 108,007.81 3,317,481 384 8,639.27 FY90' StI41hal f,913ß0l.23f±146 lÖS>4999$.2 FY91 Sep-90 11,471,250 480 23,898.44 Dec-90 11,471,250 540 21,243.06 Feb-91 11,471,250 600 19,118.75 Jun-91 11,471,250 700 16,387.50 FY91 tb"Tat 45,M85,000 45,885A00 £00.A 8044774 FY92 Sep-91 83,843,000 850 98,638.82 Jan-92 83,843,000 970 86,436.08 Apr-92 83,843,213 1,159 72,340.99 FY93 Sep-92 20,833,000 1,185 17,580.59 25,000,000 1,185 21,097.05 Dec-92 25,000,000 1,214 20,593.08 Feb-93 25,000,000 1,217 20,542.32 25,000,000 1,217 20,542.32 Apr-93 49,750,000 1,218 40,845.65 May-93 16,024,823 1,213 13,210.90 Jun-93 46,595,177 1,199 38,861.70 25,000,000 1,199 20,850.71 Source: PIU, MoES. Appendix D Table 9 UGANDA Fourth Education Project (Cr. 1965) Status of Audit Reports Year Cu bDate Type of Received Audttor IM Statement of Expenses and Special Accounts Audit Reports FY90 12/31/90 2/1/91 private unqualified Government FY91 12/31/91 10/1/91 public unqualified Government FY92 12/31/92 11/18/92 public unqualified Coopers & Lybrand FY93 12/31/93 11/18/93 private unqualified Coopers & Lybrand FY94 12/31/94 private to be submitted Coopers & Lybrand Textbook Fund Account FY90 12/31/90 2/1/91 private unqualified Coopers & Lybrand FY91 12/31/91 10/1/1991 private unqualified Coopers & Lybrand FY92 12/31/92 8/31/93 private unqualified Coopers & Lybrand FY93 12/31/93 8/24/94 Appendix D Table 10 Uganda Fourth Education Project Table 4: Staffing Status of the Inspectorate Incumbents May-90 75 41 54.67% New recruits Oct-90, Apr-92 121 114 94.21% Total number inspectors 196 155 79.08% Natural attrition 1 989-94 40 Retrenched 1989-94 8 Total reduction in inspectors 48 24.49% incumbents Jun-94 148 75.51 % Source: Inspectorate, MoES. 30' 37' 34,36 SUDAN UGANDA EDUCATION IV E TEXTBOOK PILOT PROJECT DISTRICTS MOYO® DISTRICT CAPITALS* KITGUM® NATIONAL CAPITAL DISTRICT BOUNDARIES -- INTERNATIONAL BOUNDARIES ZAIRE GL *District names coincide with District Copitals, ith one exception: Fort Portal is the District Capital of Kobarole District. NEBI31 ..APAC LAJC ~ BUSH-YI MAURA LIRA MOROTO SOROTI HOIMA KUI KAPCHORW PALUSA KIBOGA " ~Vc~ NTMLILI LUWERO KAMUE KIBALE SRORO - -UK NJA ~Mom s so 100 1,o KABAROLE In MPIGIKENYA KASESE_ BUISHENYI MBARARA- EDWAM - 0 UGANDA4 0 ýh-KALANGALA L AKE VICTORIA NTUNGAMORAI TANZANIA RWANDA