Philippines - Second Elementary Education Project

Document of The World Bank FOR OFFICIAL USE ONLY RepoTt No. 8395-PH STAFF APPRAISAL REPORT PHILIPPINES SECOND ELEt ENTARY EDUCATION PROJECT May 30, 1990 Population and Human Resources Division Country Department II Asia Regional Office This docment bas a resricted distribtion and may be used by recipients only In the performance of thder oflcial dute. Is contents may not otherwise be disclsetd without World Bank, authozation.  . CURRENCY EQUIVALENTS Currency Unit - Philippine Peso (P) US$1 - P 22.80 P 1 = US$0.04 (As of May 1990) FISCAL YEAR January 1 - December 31 ACADEMIC YEAR June - March ACRONYMS ADB - Asian Development Bank BEE - Bureau of Elementary Education BNFE - Bureau of Nonformal Education CEDP - Community Employment Development Program CEM - Center for Educational Measurement CIDA - Canadian International Development Agency COA - ConuLission on Audit DBM - Department of Budget and Management DECS - Department of Education, Culture and Sports DPWH - Department of Public Works and Highways EDPITAF - Educational Development Projects Implementing Task Force INS - Financial and Management Service GOP - Government of the Philippines IMC - Instructional Materials Corporation LACs - Learning Action Cells MIS - Management Information System NCR - National Capital Region NEDA - National Economic Development Authority NETRC - National Educational Testing and Research Center NGOs - Nongovernmental Organizations OECD - Organization for Economic Cooperation and Development OPS - Office of the Planning Service PBET - Professional Board Examination for Teachers PICU - Project Implementation Coordinating Unit PRODED - Program for Decentralized Educational Development RDCs - Regional Development Councils SBP - School Building Program UNESCO - United Nations Educational, Scientific and Cultural Organization  FOR OFFICIAL USE ONLY PHILIPPINES SECOND ELEMENTARY EDUCATION PROJECT Table of Contents Page No. BASIC DATA LOAN AND PROJECT SUMMARY I* BACKGROUND . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 II. ELEMENTARY EDUCATION ... ..... . . . 2 A. Organization and Financing .... . . . . . . . ... . 2 B. Main Issues . . *.... . . . . . . . . . . . . . . . . ... 3 Availability of Physical Inputs . . . . . . . . . . . . . . . 4 Teacher and Administrator Performance . . . . . . . . 5 Social Selectivity in Elementary School Completion . . . 7 Scope of the National Literacy Program . . . . . . .. . . 7 Institutional Capacities in Planning and Management . . . . . 8 Student Performance Assessment . . . . . . . . . . 8 MmnagemsntlInformation System . .... . . . 9 Information Flow and Retrieval . . . . . . . . . . . . . . 9 C. Strategy for Sector Development . . . . . . . . . . . . . 10 Goverrment Priorities and Programs . . . . . . . . . . . . . 10 Bank Experience ant Strategy ................. . 11 III. THE PROJECT . . ...... . . . . . . . . . . . . . .12 A. Origin . . . . . . . . . . . ... . . . . . ... 12 B. Rationale, Objectives and Scope . . . . . . . . . . . . . 12 C. Description . . . . . . . . .. . . . . 14 Increasing the Provision of Educational Infrastructure and Materiale . . . . . . . . . . . . . .. . . 14 School Building Program. . 14 Desks . . . . . . . . . . . . . . . . . . . . . . . . . 15 Instructional Materials .....15 Equipment . . . . . . . . . . . . . . . . . . . . 15 Improving Teacher and Administrator Performance . . . . . . . 16 In-service Training . . . ...... .16 Review of Pre-service Training and Certification . . . . . 16 Expanding Basic Education .... .. . .16 Introduction of Dropout Prevention Measures . . . . . . . . 17 Evaluation of Educational Outcomes . . . . . . . . . . . . 17 Expansion of Literacy Training . . . . . . . . . . . . . . 18 This report is based on the findings of an appraisal mission to the Philippines in October 1989 comprising Messrs./Mmes. Shigeko M. Asher (mission leader), Vasilios Demetriou, Maria Dalupan, Brigitte Duces, Jee-Peng Tan, and consultants Archie Lapointe, Susan Melnick and Alain Mingat. This document ha a strictd distribution and may be used by recipients only in the performance of their offiil dutieL Its contents may not otherwise be diclosed without World Bank authorization.  Page No. Strengthening Planning and Management . . . . . . . . . . . . 18 Elementary Student Assessment . . . . . . . . . . . . 2 . 8 Management Information System . . . . . . . . . . . . . . . 18 Planning and Budgeting Methods . . . . .. ... .. . . 1.9 Distribution System for Organizational Informztion . . . . 19 IV. COSTS AND FINANCING . . . . . . . . . . . . . . . . . . . . . . . 20 A. Cost Estimates . . . . . . . . . . . . . . . . . . . . . . . . 20 B. Financing . . . . . . . . . . . . . . . . . . . . . . . . . . 22 V. MANAGEIENTANDIMPLEMENTATION .. *... ............ . 23 A. Organization . . . . . . . . . . . *... . . .. . .. 23 B. Implementation Schedule . . . . . . . . . .. . . . .. . . . . 24 C. Status of Preparation .. .... .............. . 24 D. Procurement . . . . . . . . . . . . . . . . * .*. . . . . . . 24 E. Disbursements . . . . . . . . . . . . . . . . . . . . . . . . 26 F. Accounts and Auditing . . . . . . . . . . . . . . . . . . . . 28 G. Monitoring, Evaluation and Bank Supervision . . . . . . . . . 28 VI. BENEFITS AND RISKS . . . . . . . . . . . . . . . . . . . . . . . 29 VII. AGREEMENTS RUCHEDANDH ANCOD RCTIOV.T . . . . . . . . . . . . . . 29 TEXT TABLES Table 4.1: Summary of Project Costs by Component . . . . . . 20 Table 4.2s Summary of Project Costs by Category of Expenditure 21 Table 4.3: Financial Plan . . . . . . . . . . . . . . . . . . 22 Table 5.1: List of Implementing Agencies by Project Activity 23 Table 5.2: Project Expenditures by Procurement Method . . . . 25 Table 5.3: Disbursement Categories . . . . . . . . . . . . . 27 ANNEXES Annex 1: Basic Features of the Education Sector . . . . . . . 31 Annex 2: Classrooms and Desk Requirements for Year 1990 . . . 35 Annex 3: Projection Methods for Classrooms, Desks and Books . 36 Annex 4s Project Processing and Implementation Schedule . . . 40 Annex 5: Action Plan .*.9.9.9.. 99........ .*99 9 * .... ...... 41 Annex 6s The School Building Program . . . . . . . . . ... 56 Annex 7: Project Cost Tables . . . . . . . ... . . .. . . .. 62 Annex 8: Procurement Responsibilities of Implementing Agencies 65 Annex 9: Project Implementation Coordinating Unit Responsibilities . . . . . . . . . . . . . . . . * . 66 Annex 10: Disbursement Schedule and Profile . . . . . . . . . 67 Annex 11: Selected Documents Available in the Project File . . 68 MAP IBRD No. 22098  PHILIPPINES SECOND ELEMENTARY EDUCATION PROJECT BASIC DATA Country Data ! Population 58.3 million Annual Growth (1975-87) 2.5Z Literacy Rate (1980) Maie 842 Female 83X GNP per capita US$590 Population below poverty line 372 Sector Data W -Enrollments------------- Schools Teachers Students Private Participation ('000) ('000) ('000) sector Rates (2) share (2) Gross Net Elementary 33 280 9,800 4 106 84 Secondary 5 99 3,000 40 65 55 Higher 1 57 1,500 85 35 n.a. Nonformal - n.a. 400 21 n.a. - - Public Expenditure on Formal Education as X of GNP 2.8 as 2 of total public expenditure 22.0 Intra-sectoral Distribution (in Z) Elementary 61 Secondary 23 Higher 17 Nonformal <1 91 Data are for 1987 from Social Indicators of Development 1988 (World Bank), except for 1980 literacy rates from the National Census and Statistics Office (Philippines). W Financial data are for 1988 and other data for 1986 from The Philippines--Education Sector Study (World Bank, 1988), except for 1985 participation rates from UNESCO Statistical Yearbook 1988. 9 Includes only courses sponsored by the Department of Education, Culture and Sports.  PRILIPPINES SECOND ELEMENTARY EDUCATION PROJECT LOAN AND PROJECT SUMARY Borrower: Republic of the Philippines Amount: US$200 million equivalent Terms: Repayable over 20 years, including five years of grace, at the standard variable interest rate. Proiect Description: The Philippines launched a ten-year Program for Comprehensive Elementary Education Development in 1981, which was implemented with World Bank assistance through a first elementary education project completed in 1988. The proposed project would constitute a second phase of further improving equity, efficiency and quality in elementary education through support to the 1990-92 subsector investment program and action plan of the Department of Education, Culture and Sports (DECS). The project would finance civil works, furniture, equipment, instructional materials, expert services and training with the objective of providing essential physical resources equitably, improving the effectiveness of teachers and administrators, increasing basic learning of targeted groups, and strengthening institutional capacities for planning and management. Specifically, the project would: (a) provide and improve the distribution of classrooms, desks, textbooks and equipment; (b) institutionalize in-service teacher and administrator training and carry out studies of pre-service teacher training to provide the analytical basis for policy planning and investment; (c) introduce measures to prevent elementary school dropout on a pilot basis, study factors affecting student attendance, achievement and retention, and expand the DECS literacy training program; and (d) introduce annual assessment of elementary student performance, develop an integrated management information system for the sector, improve the maintenance and dissemination of DECS operational information, and strengthen DECS data and methods for planning and budgeting. Benefits and Risks: The project would improve the quality of the national elementary education program and enhance learning at the primary level. It would also promote equity and support the Government's poverty alleviation efforts bys (a) using budgetary allocation criteria which target the distribution of educational resources to disadvantaged areas; (b) laying the groundwork for reducing dropout from elementary schooling among children of poor families; and (c) expanding literacy training to the out-of- school youth and adults who lack functional literacy. In addition, the development of student assessment capacities at  - ii - the elementary level would provide a basis for improved sector- wide monitoring and evaluation, ad improvements in the DECS information system would result in more efficient and effective sector planning and management. The main risk is delayed project implementation due to inadequate budgetary allocations to the subsector and changes in the project management organizatio2al structure and staffing. To minimize this risk, the Bank has confirmed that sufficient funds have been appropriated to meet the 1990 project costs; joint annual reviews of project performance and budget allocation requirements would be held; and organizational and staffing arrangements as agreed with the Bank would be maintained throughout the project period. Estimated Costs: Local Foreign Total -----US$ million----- Infrastructure and materials 250.6 88.7 339.3 School buildings 203.7 50.9 254.6 Desks 26.8 4.7 31.6 Textbooks 19.8 30.2 49.9 Equipment 0.3 2.9 3.2 Teacher/administrator performance 4.3 0.8 5.0 In-service staff training 4.1 0.7 4.8 Teacher training reviews 0.2 0.0 0.2 Basic education 4.2 0.7 4.9 Dropout interventions 0.2 0.0 0.3 Educational outcomes evaluation 0.2 0.0 0.3 Literacy training 3.7 0.7 4.4 Planning and management 2.0 1.0 3.0 Student assessment 0.8 0.5 1.3 Information system 0.5 0.4 0.9 Management studies 0.1 0.0 0.2 Information distribution system 0.6 0.1 0.7 Project management 0.1 0.0 0.2 Total Baseline Costs 261.2 91.3 352.5 Physical contingencies 8.1 2.8 11.0 Price contingencies 38.4 8.1 46.5 Total Proiect Cost # 307.7 102.3 410.0 I Includes an estimated US$44.8 million equivalent in identifiable duties and taxes.  -