India - Sixth (Family Welfare and Training Systems Development) Population Project

 ICRR 10090 Report Number : ICRR10090 ICR Review Operations Evaluation Department 1. Project Data : OEDID: OEDID : C2057 Project ID : P009910 Project Name : Sixth (Family Welfare and Training Systems Development ) Population Project Country : India Sector : Basic Health L/C Number : C2057/L3108 Partners involved : None Prepared by : Ronald G. Ridker, OEDST Reviewed by : Susan Stout (Robert van der Lugt) Group Manager : Roger H. Slade Date Posted : 06/25/1998 2. Project Objectives, Financing, Costs and Components : The objectives of this project were to improve the efficiency of the family welfare program's human resources development and training systems, expand existing training capacity, improve the quality of training, and enhance the service delivery system in which the trained worker will operate in the states of Andhra Pradesh, Madhya Pradesh and Uttar Pradesh. These objectives were to be achieved by establishing capacity for strategic planning and management of human resources, establishing a network of training institutions and upgrading their skills and courses, and through refurbishing primary health care centers and constructing and equipping sub-centers and providing residences for staff. Total project cost was estimated to be US$ 182 million, of which the Bank provided a loan of $11.3 and a credit of $113.3 millions. As a result of exchange rate adjustments, the loan and part of the credit were canceled reducing the Bank’s contribution to$72.76 million of which 97% was disbursed. However, in Rupees costs increased from Rs 1997 million to Rs 2173 million.The project was closed May 31, 1997, two months later than originally planned. 3. Achievement of Relevant Objectives : All the objectives and means for achieving them were relevant except for expansion of training capacity since, at the time, the family welfare system was not able to absorb more workers . However, a credible network of training institutions with capacity to upgrade curricula and training materials was established, most trainers were provided with at least a short training course, more than 80% of workers were trained under the project, end -line surveys showed improvement in relevant knowledge, the curricula for in -service training became better focused on required competencies and tasks of workers, and the physical objectives of the project were surpassed . 4. Significant Achievements : The above achievements had several positive consequences. They appear to have made training more respectable and improved the morale of trainers. The project as a whole also appears to have built trust between the Bank and the government which was not present before and that in turn laid the foundation for the more policy oriented projects that followed. The provision of field residences significantly increased the proportion of personnel resident at their place of work, except for female multi-purpose workers given safety concerns and lack of water and electricity in many locations. 5. Significant Shortcomings : Many of the efforts at institutional reform and strengthening failed to occur. For example, a capacity for strategic planning human resource development was not developed; systems for monitoring training quality and computerized personnel management information systems were not established; and the envisioned reform of service structure by establishing a separate permanent cadre for trainers was not achieved. Although several blocks were nominally freed from method-specific contraceptive targets, experimentation with alternative targeting arrangements never got off the ground because of absence of management capacity at the block level. 6. Ratings : ICR OED Review Reason for Disagreement /Comments Outcome : Satisfactory Satisfactory Institutional Dev .: Substantial Modest Network of institutions was established, but other institutional and policy reforms were not (see 5 above). Sustainability : Likely Likely  Bank Performance : Satisfactory Satisfactory Borrower Perf .: Satisfactory Satisfactory "Partially satisfactory" would be a better rating if available, because of the problems created by rapid turnover of key staff. Quality of ICR : Satisfactory 7. Lessons of Broad Applicability : Where institutional capacity is weak, ambitious software components like development of a human resource strategy tend to be ignored. In such cases, an arrangement that allows for a longer term commitment with a series of smaller steps that have to be achieved before proceeding to the next step would be preferable. The recently approved Adaptable Program Loan would be a suitable vehicle. It also helps in such situations to make sure more conditions (e.g., adequate procurement and land acquisition mechanisms) are in place before negotiating the loan. But borrowers can help enormously by maintaining critical staff in position for the duration of the project so learning can take place and be applied. However, the project also showed that even weak administrations will improve when faced with the threat of losing funds. 8. Audit Recommended? Yes No 9. Comments on Quality of ICR : Excellent, thoughtful, realistic about what constitutes significant progress in weak institutional environments . Good, thoughtful set of lessons .