Zambia - Education Rehabilitation Project

Document of The World Bank FOR OFFICIAL USE ONLY MICROFICHE C0PY Rer)ort. No. :1084.,-ZA Tvpe. (SARI Report No. 10843-ZA Tit,le: ERDCATTON REHAPTT,TTATTC)N PROJE Author: KAGTA, R Ext.. : 333 14 Roo.m:J111082 Dept. :AF6PH STAFF APPRAISAL REPORT REPUBLIC OF ZAMBIA EDUCATION REHABILITATION PROJECT SEPTMBER 22, 1992 Population and Human Resources Division Southern Africa Department This document has a restricted distribution and may be used by recipients only in the performance of| jtheir oflicial duties. Its contents may not otherwise be disclosed without World Bank authorization.  CURRENCY EOUIVALENTS (May 1992) Currency Unit = Zambian Kwacha (K) KI = US$0.0051 US$1.00 = K195 SDR1.00 = K282 GOVERNMENT FISCAL YEAR I January to 31 December WEIGHTS AND MEASURES Metric System ABBREVIATIONS AND ACRONYMS AfDB/ADF African Development Bank/African Development Fund CDC Curriculum Development Centre CSO Central Statistics Office CTB Central Tender Board DEO District Education Officer EC European Community ECZ Examinations Council of Zambia EMU Education Materials Unit FINNIDA Finnish International Development Agency FNDP Fourth National Development Plan GRZ Government of the Republic of Zambia IBRD International Bank for Reconstruction and Development IDA International Development Association IMF International Monetary Fund MOE Ministry of Educatic n MOF Ministry of Finance MPU Micro-Projects Unit MWS Ministry of Works and Supplies NESIS National Education Statistical Information Systems (UNESCO Project) NIPA National Institute for Public Administration NISTCOL National In-Service Training College NORAD Norwegian Agency for International Development ODA (British) Overseas Development Agency OPEC Organization of Petroleum Exporting Countries PTA Parent Teachers' Association SAP Social Action Program SHAPE Self-Help Action Plan for Education SIDA Swedish International Development Authority SRP Social Recovery Project SRPU Social Recovery Project Unit (also Social Recovery Fund) TTCS Teacher Training Colleges UNDP United Nations Development Programme UNESCO United Nations Education, Scientific and Cultural Organization UNICEF United Nations Children's Fund UNZA University of Zambia ZEMCC Zambia Education Materials Coordinating Committee ZEMP Zambia Education Materials Project ZEPH Zambia Education Publishing House ZEPIU Zambia Education Projects Implementation Unit  FOR OMCIAL USE ONLY REPUBUC OFZAMB1IA EDUCAllO REHUUDLrA3=NPRJE rAFF APPRAISAL1WPO Cotntfls Ini ......................................... E BASIC DATA SHEET.................................... i CREDITAND PROJECQMT .................. ............ ii I.INTRODUCTION A. Overview .................................... 1 B. The Economic and Policy Environment ........ .............. I IL. TIE EDUCATIONS ................................ 5 A. Summary ..........................5 S B. Basic Characteristics of the Sector .......................... 5 C. Key Issues in Education ............................ 7 The Financing of Education .......................... 7 Quality Issues 8........ 8 Access to Education .............................. 14 Management, Planning and Policy Issues ................. 16 Pluralism in Educational Provision ..................... 18 D. Government Strategy for Education ........................ 18 E. Bank Group Support ................................. 19 F. The Role of Donors ................................. 20 III. THE .21 A. Project Origin ..................................... 21 B. Project Objectives and Description ......................... 21 C. Project Components ................................. 22 Education Quality Improvement ....................... 22 Rehabilitation and Construction ....................... 25 Planning and Management .......................... 27 Iv. ERO.BCT COSTS, PINANCIN-G, MANAGEMMWN AND EMPLESENTAllON30 A. Project Costs and Financing ............................. 30 B. Procurement ...................................... 33 C. Disbursements ..................................... 36 D. Project Management and Implementation ..................... 38 E. Reporting and Monitoring .............................. 41 F. Accounts and Audits ................................. 43 G. Status of Credit Preparation ............. .......... 43 V. BENEFTTS ANDRISKS ............................ 44 VI. AGREEMENl ASSURANCES AND ....... . 47 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 authorzation.  TA1BE AND 11j1E Table 4.1: Project Cost Summary By Projec Component ................. 30 Table 4.2: Cost Summary By Summary Account ....................... 31 Table 4.3: Financing Plan ............. ....................... 32 Table 4.4: Procurement Arrangements .......... ................... 33 Table 4.5: Disbursement Categories ........... .................... 37 Figure l.1: Education and Growth . ................................ 3 Figure2.1: EducationPyramid .................................... 6 Figure 2.2: Women and Education ............. ................... 12 Figure 2.3: School Progression . ................................. 15 Figure 4.1: Project Management and Implementation ..................... 38 Annex l(a): Enrollments Annex 0(b): Expenditures Annex 1(c): Teachers Annex l(d): Books Annex 2: Detailed Project Costs Annex 3: Forecasts of Expenditures and Disbursements Annex 4: Implementation Schedule Annex 5: Supervision Schedule Annex 6: Performance Indicators Annex 7: Titles to be Produced 1993-1997 Annex 8: Policy Studies Annex 9: Technical Assistance Annex 10: Operations of the SRP Annex 11: Role of Donors in Education Annex 12: Gender Sensitivity Indicators Anrax 13: Beneficiary Assessment Annex 14: List of Documents in the Project File MAP IBRD No. 11542 R This repot is baed on the lind of p-apprais an apprm issl whih vidse Zambia in Januaqr and April, 1992. Mh pr`appaisal mision compisd Mess./MsdAM R. I (Mision Leader and Education Specials); S. Jozensen (Economi); M. Mulatu (Fianil Aalyst); MJ. Kel (Education Specia); W. Hoppes (Education Pn; o rsprentins SIDA); 0. Bed (Examnt Specialist); Leo Sink (Archtc) an Ann Jonson Cretbook Speciali). The ppis mison comprisd Musr./Mosdames R. Ksgia (Mision Leader); M. Multu; M.J. Key; W. Hcpeon; E. Ohwkia (EducationWD Specias); an rpntatdves fim PHMNDA. ODA, WHO, INESCO and UNICEP. Stem Jorgem and Meadmn Mulau astd Ruth Kaa in th writk-4 of tih rqpot. Jan Whington provided swctarialpp. Meadaum C. Aliso and E. Kin ar tw pee evioewe. Mesrs. M. . yinelman is the lead advisor, R. Oawe th Managing DivWo Chi and Stephen Dennig, Department Director.  4- BASIC DATA SHEET Population (1992) ................................ 8.2 million Population growth rate (1980-1990) . 3.2% Area ....................................... 752,600 sq. km. GNP per capita (1990/91) ........... US$290 Ad-alt literacy rate (1985) Total ............ 76% Female ..................... ............. 67% School Enrollments (1990) Primary education (grades 1-7) .... ....... 1,452,443 Gross enrollment ratio ........... 88.4% Percent of which is female (1989) ..... ...... 48.2% Secondary education (grades 8-12) ........... 161,349 Percent of which is female (1988) .................. 37.3% Enrollment in Basic Schools. (grade 8-9) (not included with secondary) ........... 50,000 Education Budget GRZ expenditure on education as percent of total GRZ expenditure 1990 ..... ...... 9.1% as percent of GDP ........... 2.4% Source: GRZ: Central Statistics Office World Bank: World Development Report 1991  -ii- ZAMIA CREDf AND PR=Z fBorrower: Government of Zambia Benefiinary: Ministry of Education Credit Aniqnt: SDR 22.2 million (US$32 million equivalent) TIcmi: Standard IDA Terms with 40 years maturity tQSiv ObestlygI: The project would support Govermnent in its efforts to reverse the continued deterioration of the education system and to sustain education revitalization in a context of severe fiscal austerity. Specific project objectives are to: (a) arrest further decline in education quality, starting at the primary level, by supporting a series of interventions that will boost learning achievements; (b) increase access to education and improve the learning environment through rehabilitation and construction of physical facilities; and (c) increase the capacity of the education sector to manage an increasingly complex sector in a context of greatly circumscribed resources through the strengthening of education management and planning and through improvements in Ministry of Education's capacity for policy formulation and analysis. Prject Descripgon: The project has three interrelated components. The first focuses on qualitative renewal and would support the provision of learning and teaching materials and improvements in examination quality and management. The second component consists of rehabilitation and construction of physical facilities in primary schools, which would increase access and improve the education environment. TIe third is a lnn d component which would strengthen professional and administrative support to teachers and to schools; establish an information management system including a system for maintaining teachers' records; and undertake a series of policy studies that are essential to planning further development of the sector. Project conditionality would ensure increased budgetary allocadon to education, while project implementation would buttress Government efforts to involve the non-government sector in education delivery. Given the immense gap between the needed investments in the sector and the resources available, the proposed interventions were selected on the basis of their catalytic impact on education revitalization. ProZt Renefits: 'MThe benefits of the project would be long-ter improvements i human capital through improved access to better quality education. The immediate beneficiaries of the project would be about 1.5 million primary school pupils and about 5,000 education managers. Learning achievements would be boosted through the provision of about 5.3 million textbooks, teachers' guides and basic teaching materials. The elimination or triple and .quadruple shifts through rehabilitation and construction of physical facilities would improve the learning environment. Through gradual elimination of the botdenecks at the Examinations Council, delays in start-up of secondary school classes would be eliminated. The examination  -iii- reform measures would increase the leverage of examinations to exert positive influence on the learning process. Management at the school level would be improved by training of head- teachers and education offlcers and strengthening of their support system through improvements at the inspectorate. In addition, the project would: (a, support the economic rect very process both because it would strengthen the human resource base that would catalyze economic growth and because it is a powerful socio- political instrument for maintaining popular support for the adjustment program; (b) provide inputs that would stem further erosion of the sector and start a process of sectoral policy reform that would help the sector become self-sustaining; and (c) strengthen local capacity for research and analysis, through the studies component. Environmental Impact: The credit finances school inputs and infrastructure rehabilitation with minor effects on the environment. The credit will also finance the construction of 20 new schools, for which sites have been set aside as part of the urban planning process and the supporting infrastructure already put in place. Government has a well established national building construction and water and sanitation installation code which is environmentally sensitive and which responds to the Bank's environmental concerns. The selection and appraisal criteria for inclusion of schools to be rehabilitated includes environmenftal concerns. The provision of water and sanitation facilities and the health education sub-component would reduce the risk of diarrheal diseases and have positive effects on the environment. Gender-Specific Impact: Even though enrollment rates have remained relatively constant between the genders, girls have suffered disproportionately from the precipitous drop in access and quality. This can be seen from the higher rate of progression and better examination results for boys. It is expected that the improvements in access and quality that would be brought about by this project would also have a greater effect on girls' education, with all the related benefits that this would have. The project addresses gender-specific concerns by (a) supporting improvements in the sanitary facilities to take into account the special needs of mature adolescent girls; (b) providing gender-sensitivity training for educa' n managers; and (c) introducing gender-appraisal criteria in the development of textbojks and the setting of examination questions. In addition, the project would support a specific study on gender issues in educatmn. Pomev Dimension: The project would contribute to poverty alleviation in various ways. The construction of new schools in low-income peri-urban areas of Lusaka, Kitwe and Ndola would increase educational provision for children from poor families and would reduce the need for suwh children to travel long distances in search of school admission. Since schools in poor urban areas suffer more than those in better-off areas in terms of overcrowding and of triple/quadruple sessions and in terms of closures because of cholera in the community, considerable benefits will accrue to the poorer communities by targeting extension and rehabilitation work for schoo.s to these areas. Providing educational materials, strengthening the administrative and professional competence of school heads, and facilitating regular and meaningful interactions between inspectors and schools have potential for effecting signiflcant quality improvements in schools in rural and poor urban areas. In addition, the project would reinforce other ongoing efforts to alleviate poverty, particularly through the employment possibilities for unskilled iabor in poor urban locations while school construction,  -iv- rebabilitation or extension is underway. In a broader perspective, the project would bring long-term benefits in human capital that would ontribute to economic development and a reduction in overall poverty levels. Prt'lK3Hiska: There are two main risks associated with this project. The first is that Government would allocate insufficient resources to primary education either because of a deterioration in the macro-economic sitr.P3on or because resources are diverted to post- primary education. This risk is min >Led by (a) the conditionallty atached to the Project; and (b) the diversification of the revenue base of government in the course of adjustment. TH6 second risk is delayed project implementation due to weak implementation capacity. This risk is minimized by (a) management training for core impletnentation agencies; (b) targeted tecmnical assistance for the implementation of them; (c) the relative simplicity of the Project; and (d) substantial donor involvement in the Project, which would provide more broad-based implementation support. Protect Cost sumr bw Prolect CenA It (UrS$ OGs) Totat LmL UcaIin Ilu LL 5911 A. IMPROVEMENTS IN QUALITY 1. Instructional Materfals 898 8,055 8,954 90 25 2. Examination Inputs 562 2,423 2.986 81 a B. REHABILITATION & CONSTRUCTION 7.122 6.616 13,738 48 38 C. PUNNING AND MANAGEMENT 1. Head-teacher Trafning 705 340 1,044 33 3 2. Inspectors' Course 335 272 608 45 2 3. Institutional Support 453 3,469 3,922 88 11 4. Teachers Records 177 599 776 77 2 5. InformatIon Management 21 87 108 81 0 6. Najor Studies 650 975 1,625 60 1 O. PROJECT MANAGEMENT 1.515 681 2,196 31 6 TOTAL BASELINE COSTS 12. 23.18 35.95 PHYSICAL OONTINGENCIES 1- ml 2,296 3;328 -9 PRICE CONTINGENCIES 1,409 2,095 3.505 60 10 TOTAL PROJECT COSTS 14879 7910 42.789 65 11  S-V Elnancing Plan (US$ million) Lal Eoreign lnl Zambia 5.9 GRZ 3.3 1.9 Communities 0.7 0.0 IDA 9.3 22.6 31.9 Co-financiers 16 3 4 Total 14.9 27.9 42.8 JUA Disbursement Schedule US$ million hisaI Year i199 1224 l99S 19 1222 122 Amount Disbursed 1.9 3.8 9.0 9.3 6.7 1.3 Cumulative Amount 1.9 5.7 14.7 24.0 30.7 32.0 Percentage of Total 6 18 46 75 96 100  A. Ovysvew 1.1 The education sector in Zambia is in crisis: crisis of quality indicated by shortages of education materials, crumbling physical infrastructure, and low morale among education personnel; crisis of access because the resilience of the sector to expand without new investments reached its limits at about 1985; and crisis of financing as a result of protracted resource starvation. The underlying cause of the crisis is continued dependence of the education system on the State as the main source of education finance during a period of prolonged economic decline and fast population growth. As a result, an inherent tension has developed between the need to expand education provision on the one hand and the need to reduce expenditures on the other, leading to a steep decline in Government spending on education exemplified by: (a) a decline in real incomes of teachers - the starting salary of a primary school teacher lost about 40 percent of its purchasing power between 1971-85, and by the end of 1989, it had fallen to a quarter of its 1985 value; (b) the crowding out of virtually all non-salary expenditures - primary education teachers' salaries absorb about 97 percent of the primary education recurrent budget; and (c) extreme shortage of physical facilities, to the point where many schools teach in triple and quadruple shifts. 1.2 Revitalization of the education system entails making fundamental shifts in: (a) education goals and strategies, in order to reconcile fundamental needs of the sector with the fiscal reality; (b) education management, in order to improve education delivery services and increase efficiency in the utilization of resources; and (c) education financing, in order to increase the level of resources to the sector and to target resources to priority areas. Government has taken important steps by beginning to redirect a larger share of public resources to education. In addition, Government, with support from resources available under this project's PPF, has prepared a long-term strategy for the development of education in Zambia. This project would support an investment program which would strengthen these efforts and help prevent further deterioration of education quality, especially at the primary level, and at the same time lay the foundation for long-term revitalization of the education sector. B. The Economic and Policy Environment 1.3 Zambia covers an area of 752,600 square kilometers and has a population of 8.2 million in 1992, growing at an average of 3.2 percent per year. With almost 50 percent of its population living in urban areas, Zambia has the second highest urbanization rate in sub-Saharan Africa. Despite steep economic decline during the last 15 years, Zambia has greater economic potential than many of its neighbors. The country i