China - Textbook Development Project

 Texbook development project Report No: ; Type: Report/Evaluation Memorandum ; Country: China; Region: East Asia And Pacific; Sector: Education Adjustment; Major Sector: Education; ProjectID: P003477 China: Textbook Development Project (Credit 2006-CHA) The China Textbook Development project, supported by Credit 2006-CHA for US$57 million equivalent, was approved in FY89. The credit was fully disbursed and was closed on time in FY95. The Implementation Completion Report (ICR) was prepared by the East Asia and Pacific Regional Office. The borrower's report is included as Appendix B. The objectives of the project were to improve the pedagogical (educational) effectiveness and quality of textbooks at all levels of education, increase the variety of textbooks available, and improve the efficiency of textbook manufacture. These objectives were to be achieved by increasing the State Education Commission's capacity to develop teaching programs and aids; enhancing print production capacity at the central, provincial and university levels; and expanding training. However, in the Staff Appraisal Report (SAR), IDA stressed the importance of reforming book pricing policy and improving classroom teaching-learning methods through linked reforms in curricula and teacher training in textbook use. But, the main investment focus of the project, and most of the performance monitoring indicators, were directed at improving textbook production and physical quality. Implementation was generally satisfactory. New equipment was purchased and installed. But problems occurred with procurement, the guidance and monitoring of far-flung provincial entities by central project management, and the underuse of dedicated printing facilities for producing textbooks. Technical assistance (TA) was also problematic because its inclusion in the project, especially for curriculum and teacher training, came at IDA's insistence. Achievements were mixed. The quantity and physical quality of books improved. Production targets were mostly exceeded at the basic education level. But printing and publishing in provincial areas and in higher education were less successful. Managerial and cost efficiencies did not fully materialize. Moreover, some important policy and institutional development issues were not addressed, the most important being book financing and pricing policies, an appropriate product-mix from the printing facilities, the viability of publicly-funded production facilities in an open market, adequate mechanisms for textbook distribution to the schools, and sustained teacher training in book content. The Operations Evaluation Department (OED) agrees with the ICR rating of institutional development as moderate and sustainability as uncertain. However, OED rates project outcome as marginally satisfactory (ICR satisfactory) because, although the project mostly achieved its book Production targets, it had little proven educational effect in classrooms and did not meet its alms of reforming book costing and pricing policies. Unlike the ICR, OED rates IDA's performance as unsatisfactory. Quality at entry was poor because the project was more than textbook production but other components were insufficiently prepared, including the institutional framework. Moreover, IDA should have confirmed with the borrower that its assistance in the curriculum reform linked to textbook development was within the project's scope. Subsequently, IDA supervision, dominated by procurement and implementation issues, failed to attend effectively to the borrower's inadequate monitoring of provincial activities and to persuade the borrower to address the project's policy aims. The most important lesson, as the ICR suggests, but does not emphasize, is that reforms in the book industry are risky if policy and institutional issues are not addressed. Also, attention to monitoring, supervision and output measurement mechanisms for decentralized activities is of great importance to successful implementation. The ICR is satisfactory in that it is candid, analytic and strategic. The borrower's report is also informative. The operational plan is useful as a statement of policy intent. But it would be a better planning tool if it addressed sustainability and institutional development issues more fully, including performance indicators, responsible agencies, and a time-frame. A map showing the location of major project activities would be informative but is omitted. An audit is planned.