Ghana - Literacy and Functional Skills Project

Document of The World Bank FOR OFFICIAL USE ONLY MICROFICHE COPY Report No. P- 5706-GH Type: (PM) ReportNO. P-5706-CH BENNEFT, NI X34901 / J-6002/ AF4PH MEMORANDUM AND RECOMMENDATION OF THE PRESIDENT OF THE INTERNATIONAL DEVELOPMENT ASSOCIATION TO THE EXECUTIVE DIRECTORS ON A PROPOSED CREDIT IN AN AMOUNT EQUIVALENT TO SDR 12.4 MILLION TO THE REPUBLIC OF GHANA FOR A LITERACY AND FUNCTIONAL SKILLS PROJECT FEBRUARY 28, 1992 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. CURRENCY EQUIVALENTS (DECEMBER 1. 19911 US$1 W 385 Cedis (0) 0100 = 0.26 US$ ACRONYMS CIDA Canadian International Development Agency EdSAC Education Sector Adjustment Credits (Credits 1744-GH and 2140-GH) IDA International Development Association MOE Ministry of Education NBSSI National Bureau for Small-Scale Industries NFED Non-Formal Education Division, MOE NGO Non-Governmental Organization NORAD Norwegian Development Agency ODA British Overseas Development Administration OPEC Organization of Petroleum Exporting Countries PAMSCAD Program of Actions to Mitigate the Social Costs of Adjustment PPF Project Preparation Facility PNDC Provisional National Defence Council SDR Special Drawing Rights UND? United Nations Development Program UNICEF United Nations Childrens Fund USAID United States Agency for International Development WFP World Food Program FISCAL YEAR January - December SCHOOL YEAR September - June (Basic and Tertiary) J&nuary - December (Senior Secondary) MAIN RAINY (AND FARMING) SEASONS (when it is difficult to run literacy classes) North July - September Central & South June and October West May - July and October - November In almost all cases, the earlier of the two rainy periods is more significant. FOR OFFICIAL USE ONLY Literacy -awd Functional Skills -Pr=ogt CREDIT AND PROJECT SUMMARY norrower: Republic of Ghana aneficiars Non-Formal Education Division (NFED) Ministry of Education Credit Amount: SDR 12.4 million (US$17.4 million equivalent) erms: Standard, with 40 years maturity Financina Plan: Local Forein Tgtg (US$ millions) IDA 2.0 15.4 17.4 Norway 1.3 1.6 2.9 UNICEF 0.1 0.5 0.6 Government of Ghana 8.1 1.9 10.0 Total 11.5 19.4 30.9 Economic Rate of Return: Not applicable Staff Amraisal Reports: Report No. 10164-GH IBRD 23607 This document has a restricted distribution and may be vsed br recipients only in the performance of their ofRcial duties. Its contents may not otherwise be * 3sdwithout World Bank authorization. MEMORANDUM AND RECOMMENDATION OF THE PRESIDENT OF THE INTERNATIONAL DEVELOPMENT ASSOCIATION TO THE EXECUTIVE DIRECTORS ON A PROPOSED CREDIT TO THE REPUBLIC OF GRANA FOR A LITERACY AND FUNCTIONAL SKILLS PROJECT 1. I submit for your approval the following report and recommendation on a proposed development credit to the Republic of Ghana for SDR 12.4 million (the equivalent of US$17.4 million) on standard IDA terms with a maturity of 40 years to help finance a Literacy and Functional Skills Project. Additional financing of US$3.5 million would be provided on a grant basis by UNICEF (US$0.6 million) and, in principle, by Norway (US$2.9 million, to be administered by IDA). 2. Backarud. For the past four years Ghana has been implementing a major program of educational reform, supported by three IDA credits totalling over US$100 milli t. Donor support for the program has also been provided by NORAD, British ODA, OPEC Fund, UNDP, Switzerland, USAID, CIDA, and WFP, for a total of about US$60 million. Achievements have been considerable, especially at the basic level, where for the first time in more than a decade intakes into primary schools have been growing much faster than the school-age population. 3. Despite the fact that 55% of adult Ghanaians have attended school, only 33% of thmse nine years and older can be considered literate enough to write a simple letter. This suggests that for many years not only was the quality of primary education so poor that many children were not even literate when they left school, but also that there was almost nothing for new literates to read, with the result that they rapidly lapsed back into illiteracy. Available evidence suggests that there are still 5.9 million adult illiterates in Ghana. 4. Prior to independence (1957) and in the decade following, Ghana had a large and relatively effective literacy program. Many of the institutions created at that time are still in existence, and thus there is an infrastructure on which new literacy initiatives are being built. In January 1991, the Chairman of the PNDC officially launched a national literacy program, and since then he and other public leaders have so strongly emphasized the high priority attached to literacy that the demand for literacy classes has outstripped the Government's ability to deliver a quality program. 5. British ODA (URE1.4 million), Switzerland (160 million) and other donors have been financing the pilot phase of this literacy work within the framework of the Program of Actions to Mitigate the Social Costs of Adjustment (PAMSCAD). The results showed that about one-third of the participants became literate in eight months, another one-third in fiftean months and the remainder hardly became literate. These findings led to a redesign of the program, especially in terms of training, supervision and materials. 6. The functional literacy program's main objective is to improve the quality of life of the poorest Ghanaians, especially those in the rural areas. Through the provision of basic literacy and numeracy skills, and new knowledge and attitudes, the program has the potential to have a broad developmental impact. The program is also intended to regenerate popular involvement in community development activities. 7. Proect Objectives. The proposed project will support Government's functional literacy program. The project's main objectives are: (i) to assist in strengthening the institutional capacity of the Ministry of Education's Non-Formal Educatic Division to manage effectively the entire literacy program; (ii) to ensure that all program aspects are subject to frequent evaluation and monitoring, and that research and evaluation become -2- key inputs in the development of any new initiatives; (iii) to consolidate and improve the existing literacy program so that a large proportion of the 840,000 adults who will be enrolled over the next three years become fully literate; (iv) to ensure that all new literates, whether from the school system or from the literacy program, have access to a range of reading materials in Ghanaian languages; and (v) to help expand the coverage of the FM radio broadcasting system to support the functional literacy program and to increase the frequency of educational broadcasting in Ghanaian languages. 8. Proiect Deacrition. The project is designed to support all aspects of the Government's functional literacy program during the first phase of large- scale implementation, which involves the running of basic action-oriented functional literacy and numeracy classes in the learners' own 3anguage. The classes will run for at least two hours four evenings per week, over an eight month period. Each lesson will address a theme closely related to local problems and concerns, and aims to encourage learners to take action to solve these problems and improve their lives and environment. As an integral part of the program, all classes will be involved in regular community development activities. Additionally, a small number of literacy groups will have access to funds for the start up of income-generating activities, with assistance from the National Bureau for small Scale Industries (NBSSI). Community newspapers and other reading materials will be published and distributed to village reading centers, to be established by the learners, and to schools, marketplaces, and other popular meeting places. Finally, the FM radio network will be extended and improved so that it can be used to support the literacy program and its development messages. 9. The project will strengthen NFED's institutional capacity to run a quality functional literacy program (through training and technical assistance), and establish a strong capacity for monitoring, evaluation, and research. During the first three years of the project, efforts will focus on putting in place the management structures and systems required before any further program expansion can proceed. At the same time, attention is being given to regular collection of program data to be fed back into the ongoing design of materials and training. 10. Credit funds will be used to finance the production of basic literacy printed materials (US$4.0 million); support to volunteer facilitators and their supervisors, including training and the provision of incentive goods (US$4.0 million); institutional strengthening at district, regional and national levels, including technical assistance, training, and the purchase of vehicles, office furniture and equipment (US$4.9 million); the construction of office and warehouse facilities (US$1.4 million); the upgrading of radio studio and transmission facilities (US2.1 million); an experimental income generation scheme (US$0.1 million); materials storage and transportation (US$0.2 million); and PPF refinancing (USSO.75 million). A mid-term review of project achievement will be undertaken to determine project effectiveness and serve as a basis for any necessary redesign. Shedle2A summarizes project costs and financing; Scheule 8 presents tables on procurement methods and disbursements; Scheale C presents a timetable of the project's key processing events, and Schefdle D lists Bank Group operations in Ghana. A map is also attached. The Staff Appraisal Report No. 10164-GH is being distributed separately. 11. ZMigct IM1smentation. NFED will have overall responsibility for project implementation; it will be assisted by the Ghana National Association of Teachers and the National Service Secretariat for supervision of literacy classes, as well as by the Ministry of Information, and a range of NG0 and church groups. Responsibility for local-level target setting and mobilization will rest with the District Assemblies. A joint venture between the Ghana Supply Commission and the Crown Agents (UK) is likely to undertake procurement for the project, and private haulage companies will be responsible for -3- distribution of supplies to district and sub-district stores. The EdSAC unit in the Ministry of Education, which has a reputation for high quality and timely work, will help orient NFED staff and share a number of standardized . bidding documents and procedures already approved by the Bank. The central Mow division of planning, budgeting and monitoring will also play a role in imlementation activities. 12. Progect Sutainability. The project is designed in such a way that the program will be largely sustainable once this project and a possible follow-on second phase are completed, covering the period July 1992-December 1998. By the end of 1998 enrollments in the basic literacy classes will have reached their peak, all basic literacy and post literacy materials will have been fully tested and revised and will be in use under large-scale implementation conditions, and the institutional structure and staffing will be in place. More importantly, Government's own budget is projected to grow in real terms, so that by 1998 there will be sufficient local resources to finance over 701 of the estimated costs of running the program in that year. 13. Lessons from Previous IDA Involvement. Experience with literacy operations, particularly in Indonesia and Thailand, has identified a number of factors associated with project succest (i) political commitment to ensure sustainability; (ii) strong implementation capacity; (iii) attention to research, monitoring and evaluatioa in light of limited experience in running such progzrams (iv) provision of incentives to maintain the effort of volunteers, whose participation is critical to program implementation; (v) provision of reading materials for new literates so that they do not lapse back into illiteracy; and (vi) inclusion of a mid-term review. Further, experience with income generating activities associated with literacy classes has shown the need to strike a balance of attention as between production and literacy activities. 14. The proposed project design has incorporated each of these lessons. First, government commitment to the program has been and continues to be high. The project is taking advantage of this support by moving quickly to set in place the institutional structures to keep the program going even if political commitment should wane over time. Second, institutional capacity is being strengthened through the provision of key technical assistance and training inputs, as recommended by a management strengthening consultancy supported by ODA. Third, the operation is devoting US$1.2 million to support a range of research, monitoring and evaluation activities. Included among these is designation of a special "research district" in which XNED will be able to try out new ideas in order to constantly improve and strengthen the program. Fourth, recognizing the importance of maintaining the enthusiasm of volunteers, the project includes a program of incentives and rewards for . literacy facilitators and supervisors. Fifth, an important aspect of project design addresses the critical need for provision of a range of reading material in the languages being taught. These include national newspapers (to be translated and produced by the Ministry of Information), local newspapers (which will be produced with low-cost silk screen presses), as well as magazines, booklets, books and any other reading materials for which there is a market which will be published by local publishing houses, which will receive a gradually-declining subsidy through the project to cover part of the production cost of these materials. Sixth, a mid-term review will be conducted. Finally, given the complexity of linking literacy learning with income generation, the project is approaching this issue cautiously through a limited, experimental program that will rely on the experience and expertise of the 881. 15. Rationale for IDA Involvement. The proposed project forms an integral part tf IDA's sector development strategy and is a logical extension of the support already provided by IDA to the Government's education reform program. The project is entirely consistent with the Bank's strategies for poverty -4- alleviation and enhancing the statue of women, as illiterates inevitably make up the vast majority of the poorest Ghanaians and the majority of illiterates are female. Finally, the project is consistent with the Bank's strategy to help Ghana accelerate its GDP growth, for only when literacy rates reach a critical mass is a development take-off feasible. 16. AgXeAtiong. The following will be conditions of effectiveneas: (a) Government will have opened a Project Account with an initial deposit equivalent to US$300,000; (b) The first three-week facilitator training program will have started, and be acceptable to IDA; (c) An institutionalised supervision program acceptable to IDA will be in place, and at least 60% of selected supervisors will have received an initial three-week training course; (4) At least one issue of newspapers in each of the 15 languages will have been produced and distributed in adequate numbers to literacy class sites and reading centers throughout the country; (e) A report on the achievements and problems faced during the first large-scale implementation of the literacy program will have been presented to IDA; and (f) Long-term consultants in research and evaluation, and in administration and management, will have been recruited. 17. At negotiations Government gave assurances that it will: (a) Deposit into the Project Account promptly before each quarter starting three months after credit signing, the Government's contribution to the financing of the Project; (b) Carry out, not later than December 31, 1993 a mid-term review to evaluate the impact and effectiveness of the program; (c) In implementing the incentives and rewards system for facilitators and supervisors, prepare and furnish to IDA, not later than July 31, 1992, a detailed action plan acceptable to IDA; and (d) In implementing the experimental income generation scheme, prepare and furnish to IDA, not later than July 31, 1992, an agreement between NPBD and NBSSI acceptable to IDA. 18. The following will be a condition of disbursement for the component involving the establishment of two new FM radio transmitters and the rehabilitation of two broadcast studios: (a) A study will have been undertaken and found acceptable by IDA showing that local FM radio is an effective and efficient medium for fostering the literacy program and its related self- and community-improvement activities. 19. EniXonmetal AgMcts. Through the planting of vegetables and trees as part of the community development aspect of the literacy program, the project's environmental impact will be positive. It will also have an indirect positive effect through the promulgation of messages to preserve the environment. 20. ProMram Obiective Cateories. By increasing significantly literacy rates of the poor, and especially of women and residents of northern Ghana, this project will contribute to human resource development, raising the status of women, and alleviating poverty. 21. Projet Benefits. Literacy in Ghana is not seen as an end in itself but as a means to economic, social and political development, and as a first step toward the introduction of a more scientific approach to problem solving. By helping to make over 800,000 adults literate, the project is thus likely to have a positive impact on agricultural productivity, environmental protection, the status of women, a reduction in the birth rate, and an improvement in the nation's physical health. 22. Risks. The main risks involve the complex.ty of running a program in 15 languages; the difficulty of sustaining political support; logistical and administrative bottlenecks involved in carrying out such a large-scale program; and shortages of technically competent and comitted manpower. These risks have been reduced by keeping the program at its current size for three years until all systems are established and all materials can be tested and mass-produced; by building up staffing and infrastructures while there is a high level of political support; by developing appropriate incentive packages; and by seeking skills from outside the country where absolutely essential. 23. aepommendation. I am satisfied that the proposed credit would comply with the Articles of Agreement of the Association and recommend that the Executive Directors approve it. Lewis T. Preston President Attachments Washington, D.C. February 28, 1992 -6- fichedule A Summary of Proe, Cost Natimates (US$ thousands) ftoiec Componets 1ocal Foreqgn Total Basic Literacy Materials 1,200 3,800 5,000 Support to Facilitators and Supervisors 400 3,600 4,000 Poet Literacy Materials 300 500 800 Radio 100 1,700 1,800 Research and Evaluation 500 600 1,100 Institutional Strengthening 3,800 5,200 9,000 Infrastructure 900 600 1,500 Taxes and Duties 3,000 0 3,000 PPF Refinancing 0 800 800 Total Baseline Costs 10,200 16,800 27,000 Physical Contingencies 600 1,500 2,100 Price Contingencies 700 1,100 1,800 TOTAL PROJECT COSTS 11,500 19,400 30,900 Financino Plan (US$ thousands) IDA 2,000 15,400 17,400 Norway 1,300 1,600 2,900 UNICEF 100 500 600 Government of Ghana 8,100 1,900 10,000 TOTAL 11,500 19,400 30,900 7- Schedule E 5SW - -e'= IllalPag ij1 of 2 (Us$ million) Total Pent~ ietjg g 1. Md 1.1 Civl Work 1.4 1.4 (1.4) 41.4) 2. ~da 2.1 Radio Tr~namission md Studio EquIpment, VeMles, Purniture and Office Equipment 7.6 0.9 8.4 17.3) <0.8) (8.1) 2.2 Oelopment Input* 0.4 0.7 0.1 1.2 (0.1) (0.1) (-) (0.2) 2.3 Printed Materilse 1.7 1.71 0.41 3.8 (1.16) (1.15) ( (2.3) 3. Institutional Suoort 3.1 Technical Assistane 2.s* 2.9 (2.21 (2.2) 3.2 Fellowshps 0.5* 0.5 (0.5) (0.) 3.2 Training 3.25 3.2 (1.8) (1.8) 4. M~selaneous 4.1 Support to Other Agencies 0.7 0.7 (0.1) (0.1) 4.2 Refinancing PPF 0.8 0.8 (0.8) (0.8) 4.3 Tax*a and Dutlas 3.07 3.0 4.4 Selories 3.21 3.2 4.5 Operatonal Costs 1.71 1.7 4.5 Consumablu9 0.17 0.1 TOTAL. 9.6 4.7 8.8 8.0' 30.9 (8,55) (3.45) (5.4) (-> (17.4) 'For te plindng of 1oca languag reading matrals In 15 Chananlan guages to ba Mupported by Norway. 2 Supportøto to pubil~hers ($200,000) and to the Ministry of Informaon for the prIntIng and distribudon of 3M Issues of nadonal newspaper in 15 Ghannlan languages (*150.000), to be finan~ed by Norway. on the bas~s of mad negotated contreots acceptebe to the Ass~oladon. 'Consu~tanta will b iNred In aeordance with ank gudenes. In*udes US$202.000 to be overed through parallef finan~ing by Norway in acoordance with World B~nk guidelines. *No proourement. o Inoluding UNICEF-fin~ncd training of tralnero (U$8600,000>. * Includes upport for experimental incom. generdng estvities aud NBSSI adminitradon of the no.. generaton program; and support to the Uteracy Reerh Fund. 'To be finened by Govemment. -8- Sghedula B Page 2 of 2 Sumr Diabursemnt Schedule (US$ millions) Amount of the Percentage of xpenditure Category Credit Allocated to be Pianced- 1. civil Works 1.30 100% 2. Equipment, vehicles, 6.15 100% Foreign Teaching Materials# 90% Local and ?urnivaT, 3. Radio Transmission and 1.90 100% Foreign studio Equipment 90% Local 4. Printed Materials 2.20 70% 5. Income Generation Program 0.10 100% 6. Consultants' Services 1.90 100% 7. Local Training 1.80 70% 8. Overseas Training 0.30 100% 9. Refinancing PPF 0.75 10. Unallocated 1.00 Total Credit Amount 17.40 Estimated Credit DiAbursements (US$ millions) IDA Figeal Years 1993 1994 1995 1996 Annual 4.9 5.7 5.8 1.0 Cumulative 4.9 10.6 16.4 17.4 -9- shedule C eoublic of Ghana Literacy and Functional Skills Projeot TIMETABLE OF ET EVENTS (a) Time taken to prepare the project: 13 months (b) Prepared by. Government, with IDA assistance (c) First IDA mission: January/February 1991 (d) Appraisal mission: July 1991 (e) Negotiationst February 1992 (f) Planned date of effectiveness: July 1992 (g) Relevant PCRs and PPARs None &’………’…………………………………………………………………………………………………………．………………………………………‘………｝………！含 Schedule D Pase 2 of 2 (As of Dem~ 31, MI) p~ Amount in US$ mdh<m Yar Borro~ T>Iffi of Dusin= L~ Equity Totd A~ C~ 1/ CWP. 1986 K«a ~ 011 011 4.5 4.5 2/ 2440~ im cu~ B~ 0.6 0.6 Ra~ Ltd. 1989 ca~ ~ M~ - 0.4 0.4 Rem~ 11 1989 wahom ~ Ltd. Mfø. 3.2 - 3.2 1989 canadien 80~ M~ 47.5 0.5 48.0 3t Remurm m 1989 C~~ mw~ a~ - 0.9 0.9 AWOpt~ Ltd. 1990 ~ Goldfidds 70.0 - 70.0 4/ cmp. n t990 Idu~ MWM - 3.0 3.0 1991 mug« (~ Alum~ 0.3 - 0.3 1991 Pi~ La~ P~ - 0.6 - 0.6 1991 H~ bwoøtm~ UIL To~ 4.2 - 4.2 1991 D~ I= To~ 0.2 - oý2 mi cm~ 0.8 0.4 1.2 ROW~ Iv 1991 cand~ Må~ &~ 3.0 0.0 3.0 mA. 1991 0.4 0.4 199t Sec~ Db~ H~ - 0.2 0.2 D~ R~ 1991 ~ M~ (AEF) Mfk- 0.9 - 0.9 1991 Idu~ U 48.0 - 48.0 51 1991 Pa~ ws. 0.6 - 0.6 Ap~ Pt but~~ ucfDtc.31,199t im W~ ~ Ud3 ~ Mfg. 2.0 2.0 1992 gj~ Fwu Agdo~ 1.6 1.6 Im Blø swqa~ TO~ 1.3 1.3 T«d a~ commitømt 234.3 10.9 245.2 1.4M rqpqmflft md wrb"m 26.3 4.5 30.8 Tabl Ca=åtia~ Now Hdd bY IPC 208.0 6.4 214.4 Tetd UMSS~ 49.4 Li 50.5 T«d UMOM~ 4.9 4.9 19~ e U~ a~ ai WMA nal= MAP SECTION IBRD 23607 r BURKINA FASO %7 GHANA Ch UPPER EAST' :PPRES200 LITERACY AND FUNCTIONAL SKILLS UPPER" PROJECT WEST 768 2694 ,1041 NUMUROFCA$E$ N E27174 NVMER NORENOU S 27177"4*® - 5 9 - -- SECONDAR R~AD REGION HEADQUARTR NAO~NALCAPT -- REGION 8OUNDAMES -- JNERNAfONAL BOUNDAMES 0' I*~ 0w11W ~ COTE D'IVOIRE - BRONG-AHAFO 2478' ASHANTI. EASTERN`9.. S. 2640 37245 TOGO - VOLTA K~ 18922 WESTERN CENTRAL A 881 993 744 77654 26822750 cdu't'' en sfor omWhevM cöecom -'~w åonnl ~ndhw SEllDNDo~Wpart ofW o r GFEBkUAR 19924M