Nepal - Primary Education Project

Docmmnt of Tae World Bank FOR OMCLAL USE ONLY R.epR No. 12015 PROJECT COMPLETION REPORT NEPAL PRIMARY EDUCATION PROJECT (CREDIT 1463-NEP) JUNE 18, 1993 MICROGRAPHICS Report No: 12015 Type: PCR Population and muan Resources Operations Division Country Department I South Asia Regional Office This document has a restricted distribution and may be used by recipients only in the perfonrance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  Currency Equivalents (March 1984) Nepalese Rupee (NR) 1.00 - US$0.0671 US$1.00 = NRs 14.9 (September 1992) Nepalese Rupee (NR) 1.00 - US$0.0234 US$1.00 - Nas 42.7 ABBREVIATIONS ADB - Asian Development Bank BPEP - Basic and Primary Education Project CTSDC - Curriculum, Textbook, Supervision Development Center DANIDA - Danish International Development Agency DEO - District Edacation Office/Officer EFA - Education for All FC - Field Coordinator aMG - His Majesty's Government IDA - International Development Association MOEC - Ministry of Education and Culture NEC - National Education Commission NESP - New Education System Plan OCE - Office of Comptroller of Examinations PCR - Project Completion Report PEP - Primary Education Project PIU - Project Implementation Unit PMU - Primary Materials Unit PSTU - Primary Supervision and Training Unit RC - Resource Center REO - Regional Education Office/Officer RP - Resource Person SDR - Special Drawing Rights SETI - Education for Rural Development Project SLC - School Leaving Certificate SMC - School Management Committee UNDP - United Np ions Development Programme UNESCO - United Nations Educational, Scientific and Cultural Organization UNICEF - United Nations Children's Fund Fiscal Year (FY) of Borrower July 16-July 15  FOR O0C1AL USE ONLY THE WORLD BANK Wahinton D.C. 20433 U.SA om0 of DOetor4knora June 18, 1993 MOMNDUM TO THE NXECTWE PIMLORS AM THRESn SUBECT: Project Compledon Report on Nepal P mrEd ucat-on Prje (C. 1463-N!) Attachx is ihe Project Completion Report on Nepal - Primay Education Project (Credit 1463-NEP) prepared by the South Asia Regional Office. Part Il was prepared by the Borrower. ThM pilot prqject in pmary education exceeded targets in terms of the numbers of teachers, students and of nonformal program participants trained and is rated satisfory. The successful establishment of a monitorng and evaluation capacity provided a wealth of data. These outcomes led to a natioral follow-on project which will help underpin Government commitment to prmary and basic educaton as the first priority of the sector. The overall outcome is rated as satisfactory. Gien the promising follow-on project, sistainablity is rated as liye. Institutional development :s rated as partially satisfactory: wile a corps of technical staff was attached to the project unit and district personnel benefitted from project initiatives, the parent Ministry management, planning and monitoring capacity remains weakt The PCR provides a balanced asessment and thoughtfil insights on a project which was implemented in a difficult environment The project will not be audited. Attachment ,ThI docn tm ha8 re*tod dst.bu&on nd may be used by ropWIn a,l In th p.dimae. of the ofdd dud. b cont may nWot o*hw be dbosd outWorld W ank a"auwhoh  FOR OMCAL USE ONLY PROJECT CCdPLETIOX REPORT NEPAL PRIMY EWCATIO PROJECT (CREDIT 1463-NIP) TABLB OPF CNTENTS Page No. Evaluation Sumary . . . . . . .. . . . . . . . . . . . . . . . . . . Lii. PMT I PROJECT REVIEW FROM IA'SS PESPECTIVE A. Project Identity . . . . . . . . . . . . . . . . . . . . . . 1 B. Project Background ................... 1 C. Project Objectives and Description . . . . . . . . ... . . . 3 D. Project C ompoont..................... 4 E. Project Design and Organization . . . . . . . . . . . . . 5 F. Project Implemntation... .......... .4.... ............. 8 0. Major Results of the Project.. ............. . 9 BX. Project Susta X ability . * 13 -. ID Perfomance . . . . e . . . . . . . o . . . . . . . 13 J. BorrowerPerfor .ce...,............... . 13 lo Consult$ng Services ** o o , 14 L. Project Documentation and Data . . . . . . . . . . . . ... 14 PART II PROJECT REVIEW FRO BDORROWERS PER5PECTIVS A. Background . . . . 9 * * * * . . * . . . . . . . . . 16 B. The Project Coneponents................. 16 C. Project lmplement t ton.. ................. 16 D. Civil Works . . . . . . . . . . * 9 # * * . . * . & . . 17 E. Supplies and Equipment Procurement . . . . . . . . . . . . . 18 F. Educational Maaagement..t......... ... ... 18 0. Teacher Training . . . . . * . . . . . . . . . . . . . . . . 19 H. Curriculum Development and Zducational Materials . . . . . . 20 I. Examinations and Student Assessment . a . ............ 21 J. Research and Evaluation . . . . . 0 ..................... 22 K. Professional Services ............a..................... 23 L. Technical Assistance . . . . . . . . . . . . . . . . . . . . 23 M. Fellowships 4*. .. .. . . . . . . . . . . . . . . . . . . . 24 N. Project Management . . . . . . . . . . . . . . . .*. . . . 24 0. Evaluationof ank Performance. .......... ... . 24 P. AdditionalActivties . ............. ..... . 24 This document has a mtie dibution and may be usd by rcipents on in tho peforme of their offical duta Its contents my n othewis be diclosed without Wodd Dak auhormizon.  PART II STATISTICAL INORMATION Table Is Relevant IDA Credits .d .............. .... . . 26 Table 2s Planned, Revised and Actual Dates of Project Timetable . . . 27 Table 3s Estimated and Actual Cumulative Disbursements . . . . . . . 28 Table 4s Implementation Indicators . . . . . .a. . . . .. .,. . ... 29 Table Ss Project Financing ............ ........ . 44 Table 6s Project Costs . . . . . . . . . . . . . . . . . *. . . . .. 45 Table 7: Project Benefits . . . . . . . . . . . . . . . . . . . . . . 46 Table 8s Compliance with Major Covenants . . . . . . . a . . . . . 51 Table 9t Mission Data by Stage of Project. . ....... .... . 54 Table lOs Staff Inputs ....................... 55 MAP - IBRD 17639R  - 1 - PROJECT COMPLETION REPORT NEPAL PRIMARY EDUCATION PROJECT -(CREDIT 1463-NEP) PREFACE This is the Project Completion Report (PCR) for the Primary Education Project (PEP) in Nepal. for which Credit 1463-NEP in the amount of SDR 12.1 million (equivalent to US$12.78 million) was approved on April 24, 1984. The Credit was closed on June 30, 1992, three years behind the original schedule. Disbursements continued through October 31, 1992 to cover commitments made prior to the Closing Date. The total disbursed under this Credit amounts to SDR 6.7 million (US$8.6 million) and the last disbursement was on November 18, 1992. The undisbursed balance of SDR 2.4 million will be cancelled by March 31, 1993. The PCR was jointly prepared by the Population and Human Resources Division, Country Department 1 of the South Asia Regional Office (Preface, Evaluation Sumary, Parts I and III) and the Borrower (Part 1I). Preparation oW this PCR was started during the last two IDA supervision missions in October 1991 and May 1992, and is based Intuir alia, on the Staff Appraisal Report, the President's Report, the Development Credit Agreement, supervision reports, correspondence, internal IDA memoranda, project evaluation studies and discussions with project authorities, donors and advisers.  - iii - PROJECT COMPLETION REPORT NEPAL PRIMARY EDUCATION PROJECT (CREDIT 1463-NEP) EVALUATION StM-4ARY (i) Project Objectivess The objectives of the project were to: (a) achieve a low-cost qualitative improvement in primary education; (b) strengthen the administrative and technical capacity of the sector; and (C) (from 1987 on) develop non-formal strategies for out-of-school children and functional literacy program for adult participants in general, and women and children in particular, (ii) Design and Implementation: The project Was IDA's first intervention in the primary education sector in Nepal. Central to the project's objectives and design was the concept of primary school clustering around a Resource Center which constituted the main venue for the interaction and delivery of various project components. The project adapted easily to education policy changes and successfully executed all major civil works and implemented all envisaged teacher training programs, educational materials, non-formal programs and studies. The project suffered, however, from EMG staff redeployment policies and rapid local staff turnover. The project also suffered from scarcity of local counterpart funds and the Government's unwillingness to allow project funds to be used for the Technical Assistance component (Part I, paras. 21-35). (iii) Results: As thoroughly documented in consecutive evaluation studies the project achieved significant success in most areas. By virtue of the interaction of various project compenents, the project improveds (a) the teaching-learning environment; (b) the teachers' professional knowledge and teaching methods; tc) student achievements and participation; (d) local educational management; (e) educational and instructional materials; (f) literacy and (g) the physical environment in central offices and schools. Despite the formation of a core group of experienced technical staff at MOEC, tho project did not fully achieve its obj3ctive of strengthening the administrative and technical capacity of the sector. The project did exert a positive influence on sectoral investment decisions contributing to increased government priority and funding for primary education. Part II of this Project Completion Report attests to the Government's view of the success of the Primary Education Project (Part I, paras. 36-38). (iv) Sustainability: While sustainabil!ty of an education project cannot be isessed within a short time frame, the experience of this pilot  - iv - project has now been sufficiently Ointernalized' by 5KG and iuterestad donors and a new larger and national project, recently approved by IDA, will improve the likelihood of consolidating the favorable impact on sector policy, subsector quality and students' participation and achievements (Part I, psra. 39). (v) Findings and Lessons Learneds (a) The project did not impose unrealistic tartets on the sector. The fact that output in certain project components was much greater than planned and that innovative ideas were adopted without major problems, speaks to the clarity of the analysis asd the feasibility of the project's conceptual design (Part I, para. 22). (b) Macro economic performance and general administrative and staffing policies have an impact on proiect performance. Scarcity of local counterpart funds due mostly to budgetaty constraints, refusal to allow project funds to be used for staff tsaining and rapid turnover among critical project staff are strong examples of negative impact of government policies in investment projects in general and In PEP in particular (Part I, paras. 33-34). (c) Well pre2ared, timelv and well supervised pilot projects can succeed in focusing public attention on the sector, make positive impacts and test the ground for national full-scale expansion. The project was tlmely and well prepared. Supervision was regular and provided substantial assistance. The project achieved many results and prepared the ground for replication on a national scale (Part I, paras. 26-27, 38, 40, 47-48). (d) Strengthening the administrative and technical capacity of the sector is difficult to achieve without Integration of project and line Ministry functions. Although a corps of experienced technical staff is now part of MOEC and district MOEC personnel benefited from project initiatives, greater integration between project units and MOEC would have been desirable. The strengthening of MOEC's management, planning and monitoring activities remains a goal of BPEP (Part I, para. 37 and Part II, paras 6-9).  PRCJECT COMPLETION REPORT NSPAL PRIMARY EDUCATION PROJECT (CREDIT 1463-NEP) PART I. PROJECT REVIEW FROM IDA's PERSPECTIVE A. Project Identity - Project Names Primary Education ProjecL - Credit No.s 1463-NEP - RVP UAits South Asia Regloual Office, Country Departmeut 1 - Countrys Nepal - Sectors Education - Subsectort Primary Education D. Projest Background 1. After centuries of isolation, Nepal began to develop its economy in the 19508 amid such major constraints as a narrow resource base, virtually no physical infrastructure, a difficult topography and ver, United educational and health services for its population. At the end of the Rana Regime (1951), whaich opp9sed schooling for the general populatior, only about 1J,000 children (or less than 1t of the school age population) were in school. By the early 1980., half of the school age population or about 1 million children, were enrolled in primary school. This significant growth in enrollments was achieved largely under the New Education System Plan (NESP), which His Majesty's Government (HMG) adopted in 1971, and which called for greater responsibility for Government financing of education by providing free textbooks and paying for teachers' salaries. 2. However, the growth in enrollments achieved under the NESP was not matched by qualitative progress in the schools. Education standards may even have declined. The three-year primary cycle was found to be inadequate to achieve literacy and numeracy and was subsequently extended to five years. Dropout and repetition rates were excessively high, with the result that only about 30 of entrants completed the primary cycle. It was estimated that no more than 20-301 of the children attending primary school learned anything of lasting value. Teachers were poorly motivated and lacked training; the primary curriculum and educational materials were outdated and the school facilities lacked basic requirements of adequate lighting, furniture, water and latrines. 3. The quality of school managcment and supervision were equally poor and of low impact. Cupervisors were expected to cover too many schools, the District Education Officers (DEOs) had no experience or professional qualification in education, headmasters had no training and the School Management Committees (SMCs) were solely involved in securing community resources for building schools and getting children enrolled.  - 2 - 4. In addition, only about 60Z of entrants completed the two-stage (grades 6-7 and 8-10) secondary school cycle and even these students were generally deficient in Mathematics, Science and Englioh. The School Leaving Certificate (SLC) awrded by examination at the end of 10th Srade, with average passing rates of about 30?, was in ueed of reform. S. Significant disparities in access to educational opportunities based on sex, caste and region exist in Nepal. In 1979180 females accounted for only about 271 of total primary enrollments. 6. The planning and budgeting systems were very inadequate for predicting and allocating resources to meet education needs and Ministry of Education and Culture (MOEC) objectives. MOE- lacked a coordinated system of data collection and analysis for planning. 7. Finally, the rapid growth in enrollments during the Fifth Development P13n (t975-1980) had not been matched by increase. in education expenditure. 'While enrollments grew at about 182 per aunum, increases in expenditure in education averaged about 112 per mnnum in real terms. By 1981/82 the proportion of the national budget allocated to aducation vas 9.72. Withiu the education budget, the allocation or resources favored higher education (362) at the expense of primary education (292) which had been consIstently underfunded. The construction of primary rid secondary school buildings ant a significant proportion of secondary teachers' salaries were financed by the students' parents, and the burden of education on the community was greatest at primary and secondary levels. 8. The above issues became the focal point for improvements in the education system during the Government's Sixth Development Plan (1981-86). As part of the Plan's strategy to meet the minimum basic needs of the population and to support developments in other sectors, high priority was attached to primary education, work-oriented adult education, and vocational and skills training. Specifically, the Government decided to concentrate on: (a) improving educational quality and reducin wastage; (b) imparting relevant skills and scientific knowledge; (c) revising curricula and textbooks to make them more relevant to existing conditions of life as well as national and social valuest and (d) Increasing educational oppoctunities in backward areas and to disadvantaged groups, such as females. The Government's strategy to achieve these objectives was to: (a) contain, within reasonable expansion targets, enrollments at primary, secondary and tertiary levels., so as to permit greater mphasis on quality; (b) give priority to new physical facilities for primary education, non-foral work-oriented education, and vocational and technical education; (c) encourage community Involvement for the expansion of general education; and (d! continue tLie policy that all physical facilities (buildings and furnlture), excluding technical schools, would be provided by the local community. 9. The project supported the Government's Sixth Plan strategy for primary education, addi essing many of the qualit- issues inherent in the education system. The project was identified by an I identification mission, which visited Nepal during Navember 1981 and was prepared on behalf  - 3 - of the Government by UNESCO In March 1982 under the United Natioes' cooperative progoam. An extensive survey of schools in the six project districts, agreed at the time of identification, was financed under an IDA technical assistance credit and conducted by the Institute of Education of NOEC durinS June and July 1982. 'the project va pro-appraised by sn IDA mission in November 1982 and appraised in July-August 1983. Negotiations were held in Washington, D.C. from March 16 to !l, 1984, and the project became effective on December 4, 1984. C. Project Objectives ar.d Descr42tion 10. Objectives. The objectives of the project were tos (a) achieve a low-cost qualitative improvement in primary education; and (b) strengthen the administrative and technical capacity of the sector. A new objective related to the development of non-formal strategies for out- of-school children and functional literacy programs for adult momen was added in 1987. II. Descri2tion. In pursuit of quality mvrovement In pv*ma education the project would focus closely upon the intermediate objective of Improved teacher effectiveness, which would oe achieved through s (i) Increased teacher knowledge and motivation and (ii) external support in the form of better management, instructional materials and physical facilities. Teachers' knowledge vould be improved through th, provision of an Integrated in-service teacher training and supportive supervision programs as well as teachers' guides, teaching guidelines and other supportive reading materials. Teacher motivation would be aided by improved school management, greater community interest and support and the development of peer group support within the profession. 12. Strengthening the administrative and technical capacity o;: the sector would aim principally at providing administrative and technical support services fort (i) improving primary and secondary education; (i) implement- ing the government's policy to decentralize administrative and technical responsibility to district and community levels; and (iii) strengthening the Office of the Controller of Examinations (OCR) to improve the efficiency and effectiveness of secondary school leaving examinations. 13. lhe project would adopt low-cost ways of effectively addressing primary edlucation quality issues and initiating a gradual strengthening of sector administration, which would then be capable of spreading the benefits of subsequent interventions throughout the system. Its design incorporated an evaluation and moaiitoring system, conceived to provide valuable insights into the potential for further low-cost development of primary education and to laad to firm proposals for the next stage of development of the sub-sector.  -4 - 14. Because of the experimental nature of the project and the risks associated with a weak nationAl economy, poor comunications and inadequate service delivery mechanisms, t!e project was limted to about 700 schools in six accessible districts located In three of the five regions of Nepal.1/ D. Project Cogonents (a) Primary Education Inputs 15. Central to the project's first objective and to its design, was the concept of primary school clustering into groups of 8-12 schools with a Resource Center (RC) school centrally located to provide in-service and on- going training and supportive supervision. The Resource Center would constitute the main venue for teacher training and for the supply of education materials to the cluster schools. School buildings and other school facilities would be improved employing mostly local labor and materials. 16. Training. An integrated training program to involve primary teachers, supervisory staff, headmasters, District Education Officers (DEOs), school managers, the commity and parents was to be introduced Po as tot (i) instill greater teaching and management skills in the primary subsector; and (ii) bring about major changes of attitude among the whole range of persons who can influence the success of primary education. The constant presence of trained and active RPs and PCs operating from every Resource Center and District Education Office respectively was to ensure that all teachers in the project schools would receive in-service training and related in-class superv:.sion on a continuing basis. The project would appoint additional staff at the Curriculum, Textbook, Supervision Development Center (CTSDC) who would be respousVitR for conducting direct-contact training at both central level and in the six project districts. To assist the CTSDC in taking on these responsibilities, educational advisory services including technical assistance would be provided by UNICEF throughout the project. Also, additional staff would be appointed to two new primary education units: li) the Primary Supervision and Training Unit (PSTU) in the Supervision and Training Section of CTSDC and (ii) the Primary Materials Unit (PMU) in the Curriculum and Textbook Section. 17. Educational Materials. The project would contribute to alleviating the shortage of teaching materials bys (i) supporting the design and field trial. of prototypes of simplified materials by the Curriculum Section of CTEDC; (ii) Including in the activities of the Resource Centers, special workshops for teachers on making and using materials; Ciii) providing for each project school an equipment kit for use in preparation of materials; and (iv) providing about 70 library sets, consisting of about 10 school libraries, which can be rotated among the schools in each cluster. lt The six districts were Dhankuta and Thapa in the Eastern Region, Kaski and Tanahu In the Western Region and Surkhet and Dang in the mid-Western Region.  - 5- (b) Institutional Develo aent ad Management Assistance i8. To achieve the second project objee-ive, namely the effective management of educational systems of HMG, would require additional skilled staff and technical assistance. Assistance to the Ministry of Education and Culture would aim at: (a) strengthening its research capacity; (b) assisting the Secretary in organizing and administering all special education projects; Ic) strengthening the planning, budgeting and human resource management system; and (d) strengthening the CTSDC to provide support for the primary education system. In addition, IDA would finance new buildings for four out of the six project districts offices (which were in rented accommodation) and for two of the five regional offices (Pokhara and Dharkuta) to ensure stable and adequate regional support services for primary education. Finally, more specific support would be provided for the OCE in order to address issues of efficiency and quality in the examination system, especially at secondary level. (c) Education Project Studies 19. Under the project, financing for project studies would be provided, to permit the preparation of possible future education projects and for the evaluation of the project. Under the first category, provision would be made for a survey of primary schools in an.ther 20 districts during the first three years of project implementation. The results of this survey would be needed In the preparation of a possible second primary education project. Concurrently, under the second category, evaluation field studies of the proposed project would be conducted from the outset of project implementation. (d) Technical Assistance 20. UNICEF would finance the cost of all the educational services for the primary component of the project and would provide any other necessary educational and logistic services through its Kathmandu office, with the help of the UNESCO regional adviser in Bangkok. By maintaining a continuing relationship with MOEC and the CTSDC, UNICEF would assist and strengthen the CTSDC so as to achieve a major reform in the quality of primary education throughout the project districts. UNICEF would also assist the PIU in establishing an effective system of project management. The government signed a Project Agreement with UNICEF for educational services amounting to about US$1.7 million. E. Project Design and Orgaiation 21. The proJect was IDA's first intervention in the primary education sector in Nepal. The conceptual foundation reflected a clear analysis of the critical issues facing primary educations poor physical facilities, untralned teachers, severe lack of relevant educational materials and weak administration and management of the education system. The project did not Impose unrealistic targets on the sector. The project was both in conformity with and yet differently focused in relation to the ongoing primary education UNDP-UNICEF-UNESCO Education for Rural Development Project (-SETIO) which  -6- started operation in the early 1980s. SETI vas region specific, while PEP districts represented a national sample. 22. A very Important aspect of the project design was the concept of clustering of schools with an accompanying Resource Center and Resource Person. It took considerable time for these to get established, largely due to the concentration on tW' construction aspects in the first years of the project. However the fact that the RCe have bsen accepted as a national strategy for sechool improvement is proof of the success of the innovation.2/ The scope and scale of the project were appropriate at the time of design in light of the known weak management structure in education, especially at district level. That output in certain components was much greater than planned (see para. 38), can be attributed to the demand factors as soon as some schools began to receive material support many of the others began to demand the same. If anything, the project design was conservative as the final output of the project Was doubled in one component (school rehabilitation) and a totally new component (non-formal education) was added in 1987 after the mid-term review. 23. An administrative structure to implement project activities was formed at the MOEC which consisted of: (a) a Project Implementation Board; (b) a Project Implementation Unit; and (c) four educational development units established at the SanothimL Educational Complex. The Project Implementation Board was formed under the chairmanship of the Secretary, MDEC and it consists of senior officials and representatives of the NOEC, the National Planning Covmission and the Ministry of Finance. It revieved programs and provided general guidelines to the Project Director on a regular basis. The Project Implementation Unit had two technical units: Evaluation Unit and School Construction Unit and administrative sections (personnel administration, financial administration, procurement and program and budgeting). The PIU was responsible for overall planning, programming, budgeting, implementation, monitoring and evaluation of the project activities. The Evaluation Unit monitored and evaluated thi project activities, conducting the formative evaluation of project activities and maintaining basic data. In order to determine the long-term impact of the Project on the target groups, the Evaluation Unit has maintained the baseline data on students and teachers. The School Construction Unit developed the plans and programs of the construction work, su%i as construction of the administrative buildings, Resource Centers and renovation of the project schools. The SCU Implements and supervises its programs at district level. Overseers have been appointed to District Education Offices to Implement and monitor the programs at the field level. 24. Four education development units were established at the Sanothimi Educational Complex to implement the project activities. The Primary Supervision and Training Unit (PSTU) is responsible for the training component 21 The Basic and Primary Education Project (BPEP) recently approved by IDA, will finance the expansion of the primary school cluster and Resource Center system throughout Nepal.  of the Project. The Unit conducts different types of training and is responsible for developing supervision strategies. The Primary Materials Unit (PMU) is resptisible for development of the educational materials. Since 1990 the Unit has been centrally involved in the reform of the Primary Curriculum. The Non-Formal Education Unit is responsible for formulating the plans and programs of the non-formal components and lmplementing them at the project schools. The types of non-formal programs conducted at the Project districts ares out-of-school children program, environmental program (agriculture and health education), women education program and community reading centers. These programs were in addition to those antLcipated during appraisal and described in the SAR. 25. The Training and Research Unit was set up in the Office of the Comptroller of Examinations. This Unit aims at improving the existinor system of the SLC examination, such as improvement in the development of the question papers, marking schemes, analysis of the results and rules and regulations of the examinatiou. Regional Educational Directorate Offices also played a role in the implementation of the Project, appointing Field Coordinators, providing services of subject specialists, etc. The District Education Officer (now Inspector) was the administrative head of the project at district level. 26. The project document was well prepared. However, hindsight indicates that the significance of the document was not fully evident to all MOEC and project personnel. This is possibly because of the novelty of the project for MOEC, but it could also indicate the need to hold more project introduction seminars to ensure full consensus among all concerned parties. The project had some difficulty in ensuring that its activities were vholly consonant with those of the Ministry of Education and Culture. This was due largely to the perceptions of regular MOEC staff who saw project staff as being specially favored, but also to the inevitable conflict between a project thrust to bring about change and a system which wanted to preserve the status quo. More collaboration during project design would also contribute to enhancing project ownership. 27. Project timing was appropriate in that it was an experimental project conceived to test design innovations and to experiment with delivery systems for teacher training, non-formal education and school buildings. The project successes have enabled the new Government to adapt the experiment and to expand it nationwide during the Eighth Five-Year Plan. The problem was the slowness of project start-up, owing to the poor managerial system operating within MOEC. The separate nature of the Project Implementation Unit contributed to the failure of PEP becoming an integral part of MOEC. The Project Implementation Unit was meant to ensure collaborative and constructive cooperation with a number of institutions. This did not occur to any great extent especially during the first years of the project. However, had the project been cperated entirely through the regular structures of MOEC it is doubtful if any of the innovations and successes (especially the introduction of the New Primary Curriculum) would have been fully implemented and achieved.  F. Project Implementation 28. Credit Effectivenesst The credit was signed on July 7, 1984 and became effective on December 4, 1984. 29. Since its inception, both EMG and IDA have worked together to adopt the project to the rapid changes in the Nepalese educational system. Originally designed to cater for the then three-grade primary system, the project adopted to the changed five-grade system. When the MOEC launched its Basic Education Needs Program (1985186), PEP also responded by adjusting its teacher-training program to the new Government objective of providing professional training for all primary teachers. Most significantly, the project successfully executed all major construction works and resource centers, rehabilitated schools and implemented all teacher-training, educational materials, non-formal programs and studies. Central level technical staff were hired to train trainers and design educational materials. In the field, Resource Persons (RPs) were employed to provide in-service training to all cluster school teachers and, to provide a link between the RCs and District Education Officers, primary school supervisors were designated as Field Coordinators with the task of supervising up to six clusters. School construction was supervised by overseers and/or tradesmen employed in the DEOs offices (see Part l1s Statistical Information; Table 4: Implementation Indicators; 4.1: Training; 4.2s Curriculum Development; 4.3s Non-Formal Education; 4.4s Evaluation and Studies; 4.5: Office of Controller of Examinations (OCE)). 30. Based on a Memorandum of Understanding between UNICEF and IDA, WUICEF provided technical assistance inputs to the PEP in the amount of US$1.7 million. Project strategies and additional staff appointed under the terms of the agreement contributed to strengthen: (a) the in-service training of teachers with a practical, well planned and well delivered course which used the resource persons as facilitators; (b) the development and production of supplementary materials and teacher's guides; and (c) the development of learning materials which ultimately led to the on-going process of primary curriculum reform. In addition, UNICEF supported the implementation of the non-formal program for out-of-school children and adults, with a special focus on women, and provided budgetary support to hire engineers and overseers for the primary school construction and rehabilitation program. 31. Implementation Schedule and Problems. The main variance between project design and implementation is that the implementation period was extended by three years, mainly to complete project activities. The main rationale for the final year's extension was to facilitate the preparation for a follow-on project and to avoid a hiatus between the two projects rather than to complete original project objectives. Also, an additional component -- Non-Formal Education -- was added to the project in 1987/88. 32. The Staff Appraisal Report anticipated that the project would provide for the rehabilitation of about 700 schools. By the end of the project, the project had rehabilitated more than 1,300 schools and was operating in about 1,900 schools (see Part IIs Statistical Information,  -9- Table 4). The project document restricted the materials development component to supplementary readers and visual aids only. However, by the end of the project period a completely new national primary curriculum had been tested through the project system and is due for national replication in January 1993. 33. Project risks were identified correctly. The greatest risk related to the absence of qualified project managers and progrsTmers. The Government was reluctant to use the funds assigned for technical assistance to address this issue. As assurances were given during project preparation, this development was difficult to foresee. Unanticipated factors that might have been taken into account during project preparation, relate to the staffing policies then operating within BMG/Nepal. The fact that frequent transfers were made without any reference to skills or competencies might have received greater attention and focus in the project document. Though the core project management staff in charge of the technical units was stable (less than 5Z of project staff left during the total period of Implementation) there was a rapid turnover among critical construction overseers and DE0s (in the six- project districts there were 50 changes in DEOs during the project period). 34. Disbursements. One of the Implementation problems suffered by the project was related to the scarcity of local counterpart funds produced mainly by successive budget cuts. The 1989/90 Trade and Transit dispute with India and the lnternal political situation, further exacerbated the problems. Two consecutive budget cuts, one in 1989190 and the next in 1990/91 resulted in a smaller number of activities and programs accomplished during those years. Also, the lack of efficient and prompt actions by project management, such as delays In the clearance of irregularities before budgetary releases, contributed to even more constrained budget situations. Another problem was the Government's refusal to allow project funds to be fully used for some of the purposes set forth in the Credit Agreement, such as the Technical Assistance component which was designed to strengthen the admd5aistrative and technical capacity of the sector. The majority of the project staff working in the construction, teaching materials, training of teachers, non-formal education and evaluation and budgeting units were highly motivated and worked hard towards the goals of the project. However, hardly any technical staff received training with the exception of staff of the Office of Comptroller of Examinations. 35. Of the total credit of SDR 12.10 million (US$ 12.78 equivalent) 5SZ has been disbursed, or SDR 6.7 million and 67.42 in US dollar terms, or US$8.61 million. As discussed above, a large portion of the underutilization resulted from the depreciation of the Nepalese Rupee vis a vis the US dollar, the failure of HMG authorities to allocate to the project authorities the full amount of project financing and the refusal to allow project funds to be used for some of the purposes agreed upon by the Borrower and IDA. G. Maior Results of the Project 36. The project achieved a very significant success in most component areas. The Resource Center-Resource Person arrangement has been shown to be a  - 10 - success and worth the cost. Teachers know more about their subject and about teaching methodology. Rehabilitated schools are a spur to better learning by pupils and better performance by teachers. Innovative and popular non-formal educational programs have been successfully added to the original project design. Comunity financial resources have been marshalled in a -'.y that generates two rupees or more for each rupee put up by the Government. The interaction of various project components considerably improved the teaching- learning conditions and the overall achievement levels. 37. The SAR contains a general statement that possible benefits of this first project must be viewed over the long ternm when a second or even third project would be nearing its completion. However, some project achievements are already manifest. They can be summarized as follows: (a) Creation of a Better Learning Environment. The interaction of various project components has improved the learning environment. The mobilization of resources from the local communities, through their involvement in school construction and school management cozuittees; the presence of a Resource Person who by virtue of training, commltment and identification with the locality (to which he or she usually belongs), acts as a catalyst within the cluster of schools; the trained teachers, the improved materials; and the non-formal education offerings have all contributed to an improved learning environment. (b) Improvement in Teachers' Professional Knowledge and Performance. Teachers' professional knowledge and skills were tested in 1988189. The study was conducted on a sample of 172 of the total number of teachers in four PEP and non-PEP school districts and it was almed at testing the teachers' professional knowledge. The findings Indicated that the knowledge and skills of the PEP teachers had increased by 79Z compared to their knowledge and skills level before the training and intensive supervision system started by the RC system. When compared to the non-PEP teachers, the average percentage scores of the PEP teachers was 127Z greater.3/ Class observation and formal discussions were used to assesa teachers' behavior In the classroom in activities such as lesson preparation, teaching methods, use of educational materials, students' participation, class management and so on. The scores on PEP teachers' behavior were consistently much higher than the scores of the non-PEP teachers (see Part III Statistical Information, Tables 7.1, 7.2 and 7.3). Notwithstanding these favorable outcomes a national primary teacher training strategy and program are still lacking in Nepal. SI 4EC, Primary Education Project Evaluation Units "An Impact Study of the Training on Teachers' Behavior in Classroom", Xathmandu, January 1991.  - 11 - (c) Imgrovement in Students' Achievement. Another major study 4/ comparing a total of 50 PEP and non-PEP schools, shows conclusively that PEP students of all grades perform better in academic achievement in all tested subjects (Nepali, Social Studies, Health Education, Mathematics, Science and English) than non-PEP students. Pro-tests vere administered in February 1990 and post-tests In November 1990. While the achievement levels in both PEP and son- PEP districts increased between the pre- and post-test, Table 7.4 In Part Ills Statistical Information shows that the academic achievement level of PEP students is higher than the non-PEP students. (d) Improvements in Students' Promotion, Repetition and Dropout Rates. A comparative analysis of student data shows that PEP schools have achieved significant improvements in the rates of promotion, repetition and dropout as compared to similar non-PEP schools. Repeater rates are lower in all classes of PEP districts when compared to the non-PEP districts" classes; dropout rates were higher in the non-project schools by 8.4 percentage points and the promotion rates (students passing the final examination) of all classes in the project schools wero 12.90 higher than those observed at the non-project schools. (s) Improved Educational Management. The cluster system has given each group of 10-15 schools a supportive identity which has permitted lmprovements in general management. The headmasters visit each others' schools and specific training activities are designed to address redress local problems. (f) Greater Communitq Involvement. The initial activity of the project in a specific area was related to the school rehabilitation program, where a "seed money' grant of up to 40X of the estimated cost of rehabilitating a school was made to the commiunity. In this way, considerable cammuity funds were generated for primary education, while at the same time, the community became more aware of their children educational needs. This also facilitated the introduction of the non-formal education components of the project. tg) Improved Instructional Materials. Teachers have been provided both with basic tesching aids created and supplied by PEP and with the skills to prepare teaching/learning aids specific to their own classroom needs (see Part Ills Statistical Information, Table 4.2). (h) Improved Literacy. Even though the original project was limited to primary school based strategies, it was soon realized that improvements In the primary sector were also dependent upon such 4/ MOEC, Prlmary Education Project Evaluation Unit, 'An Impact Study of PEP inpute on Student Achievement', Katbmandu, February 1991.  - 12 - factcrs as comaunity awareness and involvement in the educational scene and the educational status of the population in general. When it became clear that there was a strong correlation between non-achool attenders and the illiteracy of their parents, efforts to reach parents and adolescents were intensified. Programs such as the Out-of-School Program within PEP hare contributed to increase literacy in Nepal. By the end of the project, beneficiaries from non-formal education included about 24 thousand women, 37 thousand out-of-school children and 22 thousand participants in the Adult Education Programs (see Part IIls Statistical Information, Table 4.3). (i) Strengthened Technical Staff. The Project did not fully achieve its objective of strengthening the administrative and technical capacity of the sector. However, the Project has provided MOEC (and now the Basic and Primary Education Project) with a corps of experienced and trained staff (see Part III: Statistical Information, Table 4). Much of the training has been gained through on-the-job and program activities. The Project lost the opportunity of consolidating this base by not utilizing the considerable funds at its disposal for professional staff training. The fact that the project is being expanded and continued through the Basic and Primary Education Project for a further eight years will provide the opportunity for correcting this situation and for moving trained planners, progranmers and educational researchers into more central positions within the MOEC itself. (j) Improved Physical Environment. The Project has provided additional office space to MOEC at central, regional and district levels. Six districts have been provided with Resource Centers and about one thousand three hundred schools have been rehabilitated (see Part Ills Statistical Information, Table 4). 38. Lastly, the project exerted a positive influence on sectoral investent decisions by drawing attention to the problems of education at primary and basic level. The share of primary education in the total education budget increased from about 29Z in 1981/82 to more than 502 in the current fiscal year. The project was the main focal point for in-country preparations for the Education for all (EPA) Jomtien World Conference which led to increased priority being given to primary education. Within the sector the project had a profound impact on curriculum development, supervision strategies and out-of-school education. Community contribution to education was greatly increased through the cost-sharing school rehabilitation program. The activities leading to the preparation of a second iroject, led the MOEC to set up a high-level team of experts to develop a Master Plan for Basic and Primary Education. The project lived through three political erass the Panchayat One-Party System, the Interim Government of 1990-1991, and the new democratic multi-party system from mid-1991. Throughout these difficult times, overalU the project was able to carry out its programs and keep the issues of primary education in focus.  _ 13 - B. Project Sustainabilitv 39. Based solely on previous experience, the likelihood of sustainability of project components could only be rated as low. Nepal's educational development is characterized by examples of pilot projects which have never impacted on sector policy, nor managed to operate on a scale of any significance. Many of PEP's programs were innovative and took considerable time to be sufficiently 'internalizedO. While sustainability In education cannot be assessed within a short time-frame, the follow-on project gives reason for an optimistic forecast of sustainability. The major reason for this is that the second phase, or Basic and Primary Education Project, is nuw a national program, one to which both government and the donor community are strongly committed. The principal challenge as regards sustainability is therefore not whether, but at what level of quality and efficiency the project's activities will be sustained. The Goverrnent and donor community have agreed on a Financial Plan which will provide adequate resources for a profound change in the sector. The question remains as to the degree to which technical ability, commitment and public support can be harnessed to utilize these resources. I. IDA Performance 40. IDA supervision missions were fielded regularly (16 missions in the course of seven years) and provided substantive assistance to in the areas of policy development, institutional upgrading and human resource development. 'hile the missions consisted of staff with the required skills, high staff turnover resulted in a weakening of systematic follow-up. The absence of a major In-depth aid-term review was a drawback. An evaluation study conducted by the Center for Educational Research at Tribuvan University was found to be of unsatisfactory quality. Cooperation with the parallel donor, UNICEP, was satisfactory up to the end of the official project period 1989190. However, it is not known whether full utilization of the UNICEF grant component (US$1.7 million) has been achieved and perhaps better IDA/UNICEF monitoring of this could have helped. 41. While IDA mission reports consistently drew attention to poor management performance by the Project staff, it proved impossible to effect any significant changes in project personnel. In the latter years of the project the attention of most mission members was focused on preparation activities for the follow-on project. The BPEP preparation missions interacted mostly with PEP project staff and with the Secretary and Additional Secretary of the NOEC, rather than with Ministry staff at large. J. Borrower Performance 42. The project disbursed approximately 67.4? the IDA Credit. The main reasons for the shortfall were the depreciation of the US dollar vis-a-vis the SDR and of the Nepali rupee vis-a-via the US dollar, and BMG's refusal to spend IDA funds in certain categories, especially technical assistance and training. ihile most of the components were implemented either above or to a satisfactory degree, there were some shortcomings In the quality of  _ 14 - supe71ision at the local level. This Was possibly caused by the unclear relationship between the project and MOEC at district le-iel. Further, the project did not succeed In bringing about any substantial improvement In the general planning and programming skills of the I4OEC as a whole. Project management did, however, Improve particularly In the late stages, prompted possibly by the attention given to BPEP preparation. An important lesion for the future relates to the need to place more emphasis on practical, project- component-specific management training. 43. IDA staff and Project officials cooperated very positively and in a very friendly atmosphere. However, the professional relationship was not adequate. Briefings by Project officials were lacking in analytic content and the ability of other parts of the MOEC to inform missions of educational developments, and of PEP's impact on such, was poor. Too often missions had to rely on expatriate technical advisors for professional briefings and e!iscussions. K. Consulting Services 44. Construction contractors vere generally satisfactory for central level operations. However, there were considerable difficulties with contract work at district level. This led in part to a discontinuing of the contractor method for Resource Center construction In the last year of the project. 45. The major external consultancy to PEP was provided to the Office of Controller of Ezamliations to improve the SLC and to assist in the computerization of examination data. The poor relationship between the Project Office and the OCE, the weaknesses at OCZ itself, and the inappropriateness of the level of technology (main-frame computer) weakened this component. The consultants themselves were of high quality but the design and mnagment of the component was at fault. As a result, efficiency and quality of the secondary examination system has not improved as expected. L. Project Documentation and Data 46. The Staff Appraisal Report was developed in the early 1980s. The Project did not get going effectively until 1985 and ended In 1992. Therefore the situation and the proposed activities described In the SAR were at some variance with the situation obtaining by the end of the 1980e. There was need, therefore, for either updating of parts the SAR or transforming the SAR Into something akin to an Operations Manual, which could be used as the basic reference and vorking document for successive missions. While the data in the SAl and other preparatory documents was adequate, it did not form the basis for the monitoring and evaluation work of the Projects Evaluation Unit. Project Initiating Workshops could help In the general task of ensuring that the SAR and related documents get translated into project working documents. 47. Preparation for a follow-on project. As early as April 1989 the Bank aa4 BMGIMepal reached agreement in principle on the need for a second project. By July 1989 the MOEC was able to present a project proposal which led IDA to field project identification and preparation missions. The  -~~~~~~~~~~~~ 1- motivating goal vas the then Goverament'e declared Basic Needs Policy, which proclaimed, inter alia, the goal of basic education for all by the year 2000. General donor concern and Interest in the sector led UNDP to assist MOE:0 to set up the BPEP Master Plan Team which comme'ced vork In 1990. The political unrest In Nepal In 1990191 slowed down the process of project development but the momentum was sustained by the mew democratic political order and by the new gwernment's desire for change. 48. The BPEP Master Plan provided an excellent framework for donors and government to negotiate a program rather than adopt a discrete project approach to educational development in the 19908. A comprehens!.ve financial plan was developed and, to a considerable extent, this has to a considerable extent, guided donor investment plans. Complete donor coordination was not possible owing in part to the varying project preparation processes of the different agencies. However, there is almost complete ccusensus among the donors and w,vernment on the priority assigned to primary educetion and on the strategies to be adopted, and this promises well for the future. 49. In addition, IDA was able to assist in human resource development for the follow-on project by successfully negotiatlng a Grant Fnd (US$1.6 million) from the Japanese Government to enable MOBC hire the necessary cousultants and train the necessary staff so as to be able to plan and imlement the follow-on project more effectively. There were itial delays In the use of the fund but it is expected that by the date of ter4tnation (March 1993) a sufficient number of national staff will have beeo trained in the skills required to ensure PEP sustainability and successful BPRP iMplementation.  - 16 - PART IIs PROJECT REIEGV FROM BORROVD.'S PERSPECTIVE A. Background The project objectives were tot (a) achieve a 1lw-cost qualitative improvement in primary education; (b) strengthen the administrative and technical capacity of the sector. A third objective was added half-way through the project period; (c) develop non-formal strategies for out-of-school children and functional literacy programs for adult women. B. The Project Components These are described in Part I of the completion report. C. Project Implementation General. The first IDA intervention in the primry sector in Nepal, co- financed by IDA and HKG/Nepal, wi'h parallel financing from UNICEF became effective in July 1984. The planned date of completion was June 30, 1989 and the closing date was June 30, 1992. The reasons for the extension weres (a) the slow start-up to the project; (b) the increase in project targets; (c) the consequences of the trade dispute with India in 1989190 which badly affected the construction component; (d) the need for a transitional period to ensure continuity with a follow-on project. The total projects costs were designed as follows: HMGUS$ 2.19 IDA CreditUS$12.78 UNICEFUS$ 1.70 TotalUS$16.67 The estimated expended amounts are as follows: HMGUS$2.75 IDA CreditUS$8.39 UNICEFN/A TotalUS$11.14 The project succeeded in improving the quality of primary education, in strengthening the infrastructure through construction of educational facilities and rehabilitating primary schools, and in developing and implementing effective non-formal educational programs. The project was not very successful in strengthening the administrative and technical  - 17 - capacity of the sector. However, as most of the project's components have been adoptvd into a larger and nationally-focused follow-on project, BPEP, the project can be said to have been a success. D. Civil Works 1. Achievemsets. The project completed all planned civil works: (a) an educational complex at Sanothimi, including a Curriculum & Textbook Development Center. an Examinations Center, an Educational Library and Hostel facilities for training programs; (b) a Project Office which is part of the MOEC complex; (c) two Regional Education Offices and Training Centers; (d) four District Education Offices; (e) one hundred and 33 Resource Centers; and (f) rehabilitation of approximately 1,400 schools (SAR targets 750). 2. Problems. The Project's School Construction Unit was understaffed and did not receive the technical assistance needed. The primary school construction component was badly designed. In tha first years of the project there was no quality control of school construction standards. (A number of these schools collapsed in a earthquake in lu 9). The Bank's insistence on the contractor system for Resource Center construction caused considerable delay especially when the project began to operate in the more remote rural areas. (This was rectified in the last year of the project when RCs were constructed on a community-contract basis). Insufficient attention was given to developmental aspects of the works preparation of appropriate designs, studies of building materials use and availability; community involvement strategies, staff development. In comparison with other components the SCU hre the highest turaover of staff, especially among district overseers. The taade dispute with India in 1989/90 led to shortages of building materials and a consequent slowdown in all building activities in the country. The MOF decision to put a moratorium on construction components of projects in 1990/91 led to a severe halt in program development. 3. Lessons and Rec o tudations. The project succeeded in generating considerable private support in education. Communities contributed an estimated 701 of the cost of school rehabilitation. While this kind of contribution can be seen as a form of Indirect taxation, it has shown that the concept of 'seed money" works. A valuable lesson is that the community should not be seen simply as a cheap labor source but that the project activity should be the cutting edge of educational interventions In the same communitiess functional education programs, health, nutrition, environmental activities, etc. the project has led to the official recognition of the Government's role in the physical construction of schools. A Physical Planning Unit has been formally set up within the new project (B#EP/MOEC) to act as the planning and monitoring center, while a Schools' Construction Unit has been set up within the Ministry of Housing and Physical Planning. The future success of school building in Nepal will depend on the success of these two units, not least in their ability to work closely and cooperatively. The component'o swetesses were not fully assessed by the IDA in its preparatory  - 18 - work for the follow-on project. in particular, the project's staff experience in dealing with local covunities and its ability to respond to the specific needs of different areas are valuable lessons for community development in Nepal. The main recommendation is that much more attention must be given to the professional development of the two plamed Units. It is hoped that the proposed DANIDA assistance will address this issue. B. Supnlies and gquipment Procurement (a) Achievements. The project was quite competent in the procurement of the supplies and equipment required. (b) Problems. The absence of a maintenance component for all equipment is a serious drawback, though it is difficult In mny cases to acquire such services especially in rural areas. (c) Lessons and Recommendations. Maintenance and training aspects should be addressed in the follow-on project. P. Educational Management (a) Achievements 4. The most Innovative management intervention was the Introduction of the school clustering system, with the accompanying Resource Center, Resource Person and RC Management Committee system. While the clustering system is not new to the Asia region, there was very little knowledge of its functions and, probably more critically, no research or study done on how best the concepts could be adapted to the Nepalese situation. This possibly accounts for the considerable confusion in the first years of project operation. 5. The fact that both the )OEC-BPEP Master Plan Report (1991) and the National Education Commission Report (1992) endorsed the concept and strategy and that the RC is a major component of the follow-on BP?P (1992-97) prtject is confirmation of its impact and initial success. Evaluation studies which show increased teacher professional knowledge, improved teacher classroom performance and higher student achievement scores (compared to non-project districts) can be reasonably imputed to the IC strategy by virtue of its ability to deliver services and support at school-based level. 6. The project, through its specific unit structure of management, has developed a cadre of experienced and profeesional educational planners, programmers, evaluators, physical school designers, curriculum developers, textbook writers and designers, at central level, and a new type of school supervisor, focusing on qualitative inputs, in the form of Resource Persons, at the district level. Very few of the above were available to the MOEC at the outset of the project. Central and District level regular MDEC staff benefited, though to a much lesser degree, through their direct and indirect involvement In project component implementation.  - 19 - (b) Problem 7. The project did not make a strong impact on NOEC's capacity for educational management. This can be attributed to the existence of a separate Project Office (for almost five years separate and at a distance from the MOEC), to the fact that programs at district level were operated through a discrete project office, and to the absence of mechanisms to ensure greater iutegration between project .,-its and the relevant MDEC sections, directorates and departments. The project's work on curricmlum development best illustrates the dilemmas the project could hire the kind of staff required for curriculum work and had the funds and freedom (as well as some foreign technical assistance) to put in motion the process approach to curriculum development, while the official unit, the primary section of CTSDC, hampered by lack of funds and development assistance, was not actively incorporated into the whole exercise. The success of the project"s liitiative led to the promulgation of the first grade textbooks based on the new primary curriculum. (c) Lessons and lecomuedations 8. The situation described above could possibly have been avoided through better project design and/or through better Ministry/Project monitoring and management of the situation. On the other hand, such a situation may be one of the development phases that have to be experienced in order to change the whole direction of the public service, regarded at the end of the 1980s as unproductive and inefficient. 9. The first precondition for an effective Integration of project and line Ministry functions has been met ln the case of the follow-on (BPEP) projectt all BPEP components are national programs. Therefore, the very process of RPEP developaent will keep the issue in focus and demand joint planning and evaluation. However, conscious and deliberate strategies must be developed to resolve the lssue in a produ4tive and collaborative manner. By the end of BPEP Phase 1 there should be no distinctLon between any BPEP activity and those of the relevant MOEC section. By the end of BPEP (10, 15? years hence), MOEC and Project sections/uaLts should be totally integrated. G. Teacher TraininS 3). Jchievements. When the project started in 1985 there vas no pxovision for primary !'-service teacher training in the country. Mandatory training was not required and whatever training was offered, it was mostly project based and/or training for specific purposes. That primary teachers could also be recruited without a Secondary level certificate indicates the then serious condition of primary teacher education. 11. MOEC took two important polLcy decLsLons during the course of the project period: all teachers were required to have an SLC and all teachers had to receive a minimum amount of training (150 hours Basic Needs Training). PEP va at this stage well underway wlth its training program but was able to adapt to the new situation (though a considerable number of non-SLC teachers had receLved training and were then dismissed). Critical features of PEP's  - 20 - teacher training strategy were: - coutent based on needs assessment and local school conditions; - programs developed by central level staff on workshop basis; - the modular approach was usedt all modules of 12 days duration; - each day's work was structured on a 4-part basiss diagnosis, demonstration, workshop (practice) and plenary session. Each day's theme was an identified issue related to actual schoollclassroom conditions; and - each module was evaluated. By the end of the project a basis for a full, integrated and systematic in- service teacher training system was in place. 12. Problems. Evaluations have shown that the trainings have had a very strong and positive impact on teachers' professional knowledge and classroom practice. However, the absence of a national teacher training strategy has left the future of the training programs uncertain. It is to be hoped that the planned ADB-funded Teacher Training project will utilize the experiences, materials, delivery system, etc. of the PEP strategy which has the advantage of being fully tested and modified under an on-going evaluative process. 13. The project has developed 15 modules relating to all aspects of teacher training needs. Only three of the modules are officially recognized for career development purposes (Basic Needs Training). This relates to the problem concerning the absence of a national teacher development institute or commission which could develop policy and carry out the kinds of policy research needed to provide the cotutry with an integrated teacher training program. 14. Lessons Learned and kecammndations. The value of training based on the actualities of the current classroom situation was repeatedly confirmed by evidence of teacher application of skills mastered during training sessions. The 12-day RC-based training meant minimum disruption of the school's programs; however, more use should be made of vacation periods and head teachers should be advised on how to plan for the systematic release of teachers. The Trainer and Trainee manual system meant that a consistency was maintained throughout project sites; teachers were able to use their manuals as valuable reference materials. H. Curriculum Development and Educational Materials 15. Achievements. The major achievement was the project's ability to change focus during the course of the project, away from a supplementary materials approach to a curriculum refonm strategy. It was found that the supplementary materials were unable to shift the focus away from the textbook (itself unchanged since 1965 and accepted as a very poor learning instrument) and therefore made no impact on classroom activity. The situation now is that a new, reformed and relevant curriculum is in place which can guide the development of textbooks and supplementary materials in a coherent manner.  - 21 - 16. The project was also able to introduce and make effective the process approach to curriculum developments objectives - materials - testing - trialling - monitoring - evaluation - revLslon. The new Grade 1 curriculum to be launched In January 1993 vas implemented in 30,300, and 600 schools over a period of three years. The process approach was applied nationally in the preparation of the New Curriculum Program 1993-97. 17. The question of student assessment and primary examinations was taken up by the project. Strategies were developed to improve the Grade 5 examination and to introduce systomatic student assessment. The project provided very valuable on-the-job experience to curriculum writers and text designers. The project also provided support materials (chalkboards, rulers, AV aids, etc.) to all the concerned schools. 18. Problems. See Section E above for problems relating to Institutional development. Of all the qualitative factors involved in primary education, the quality of the curriculum and its attendant teachingllearning materials is probably the most critical. Quality depends on committed, skilled and trained staff. PEP's curriculum development activities have provided excellent on-the-job training opportunities but does not have the necessary trained personnel in the critical areas of textbook development and production. 19. Lessons and Recaendations. Most of the lessonslinsights gained from PEP's experiences have been addressed in the design of BPEP. The skilled manpower issue, however, involved factors outside the control of the project itselft government staffing policies, sometimes tnappropriate selection of the candidates for training, lack of incentives to produce quality work, etc. These issues must be addressed during BPZP's period of operation. I. Examinations and Student Assessment 20. Achlevements. Provision of adequate physical facilities for the office of the Controller of Examinations; purchase and installation of a mini- frame computer sufficient to handle all examinations data; training of senior staff; Improvements in some aspects of examination procedures. The OCE component on PEP was able to utilize its technical assistance component by virtue of a special arrangement between IDA and the contractor, Cambridge University Ezaminations Syndicate. 21. Problems. Vhile OCE did have access to adequate technical assistance and training opportunities, ironically this did not have any great impact on the overall objectives reform of the SLC examination. The reasons are complex but they includes - lack of professional staff; - lack of total comnitment to carry out the degree of reforms necessary; - poor utilization of trained staff; - poor management and organizational ability at OCE to set up the necessary structure to effect changeg - lack of the kind of leadership necessary to affect change.  - 22 - 22. Lessons and Recommendations. The OCE component did not fit easily into a primary education project as OCE deals exclusively with secondary education. The component vould be more at home in a project relating to secondary education development. In its latter years, PEP began to pay attention to student assessment and Grade 5 examination problems. Student assessment is now an integral part of the curriculum development component of BPEP. BPEP should also continue the promisgto work done on Grade S examinations: eventually any real change In secondary examinations can only be realised when students entering secondary education have been exposed to good testing techniques and come to understand the value of testing as an essential feed-back mechanism. J. Research and Evaluation 23. Achievemmets. The PEP evaluation unit carried out an impressive amount of work, albeit without an overall evaluation and research strategy. The unit was a very innovative idea and much was learned on an on-the-job basis. The unit worked in three major areas: (a) base-line data collection, (b) process studies, and (c) impact evaluations. Concepts such as item banks, tracer studies, participatory evaluation. etc., were Introduced through the project. The fact that the unit will have a more sharper focus and better defined long- and short-term objectives in the follow-on project is due to the advocacy work done by PEP, based on a realisation of the critical important role the evaluation unit played especially during the latter period of the project. 24. Problems. Initially much of the evaluation was quantitative with little attention to the need for evaluation to relate as closely as possible to the objectives of the project. The Unit did not, for example, help define qualitative indicators at the outset so that the achievements and problem of PEP could be more easily verified. A major criticism of PEP's evaluation was that it was an "in-house* arfairs the project evaluating itself. In the first place, the MOEC's oan Program and Evaluation Section lacked expertise to provide the necessary services. Secondly, the issue should not be 'in-house versus 'outside' services but rather the quality of the product. The Center for Educational Research (CERID) was contracted to carry out a mid-term evaluation of the project but the exercise did not succeed in focusing attention oan the real issues and problem affecting the project. One possible reason was the management of CERID at that particular time, andlor the absence of seriousness of approach to the work at hand. More important was the Project's failure to establish a productive working relationship with the MOEC9s Statistical and Manpower Unit, which would have strengthened the overall data collection of MOEC and provided better sources for monitoring activities. 25. Lessons and Recoumendations. The MOEC needs a strong, skilled and independeLt evaluation and research unit. further, the MOEC needs to be able to commission external evaluation and research oan critical policy issues and programs. Therefore, the first need is an overall, comprehensive research and evaluation policy for MOEC. (BPEP could start the process by developing a policy-research component.) This should be followed by an integrated program  - 23 _ approach mazimizing the contributions of the KOEC's own Statistics and Manpower Unit, the IPEP Evaluation Unit, CERID and external research bodies. 26. BPEP will start with programs which, as a result of PEP's evaluation work, can now be replicated nationally. The thrust of BPEP's evaluation therefore must be In the area of policy researcht by the end of 5P1P the MOEC must know the cost-effective and cost-benefit Indices of all BPEP programs and thereby allow the governmnt to utilize its resources to the maximum benefit of the social sector. 27. To counter the accusation of gin-house evaluation, BPEP should pursue the idea of institutional linkage. Working In collaboration with an international research institute will not only enhance the status of the work of the unit but will provide very necessary exposure and training for national staff. K. Professional Services 28. Professional services were used for the examination component (Cambridge Examinations Syndicate), construction (Chinese Company and Nepal Architectural and Physical Planing Company). An Indian firm, PCS, was awarded the contract for the supply of the computer equipment to the National Computer Center for examinations data process and analysis. L. Technical Assistance 29. UNICEF signed an agreement with MDEC/P1P to provide technical services to the project in the form of advisers and staff development training. UNICEF provided approximately 90 mm of foreign advisory services from 1984 to 1990. DANIDA provided a Chief Technical Advisory for the period January 1990-September 1992. A clear strategy for technical assistance. focusing on both transfer of skills and national staff development, was absent from the beginning. In some cases, advisers vere more at the service of the donor than of the project, leading at times to a conflict of interests. 30. In the future, tecbnical Assistance should be the result of much more careful preparation. It is unfair on both parties, project and donor, if realistic and feasible objectives are not specified. While there is some justification to the complaint of some advisers that they did not have clear instructions from the project, on the other hand it is the job of a tecbnical adviser to identify the issues and suggest/implement programs, and not wait to receive precise instructions. 31. There is no doubt that MOEC needs considerable technical assistance and trained national man'ower. The project's failure to use fund resources at its disposal for this purpose is one of the most serious failures of the project. While it is true that in general UNG prefers not to use credit funding for these categories, it is the job of project personnel to advocate much more strongly on this issue and to ensure that any such investment directly benefits the project, the MOEC and the national human resource base.  - 24 - M. Fellowshipg 32. Technical project staff were provided with short-term fellowships (mazimum three months courses) under the terms of the project. A coherent fellowship strategy was lacking from the beginning. However, government practices at the time did not promote a developmental approach to fellowships. This should be rectified in the follow-on project. N. Project Management 33. Bank Aide-Memoires continuously referred to poor management performance. Project personnel responded that as PEP worked within the regular EKG system, it was affected by the general weaknesses of the national management and administration structures. That the project is now considered a modest success reflects on management improvement during project implemenhation. However, in view of SHM's intentions to radically reform the public service it is critical that the follow-on project takes a much more serious view of its management needs and ensure that a skilled management team is In place at the onset of the project. This issue should be addressed in the first six months of the project. 0. Evaluation of Bank Performance 34. The Bank's impact on the project was weakened by the high turnover of mission staff. In latter years PEP supervision missions took second place to BPE" and other project preparation and development activities. The Project would also have benefited from a more "problem solving' approach to Missions; this would have taken more time but would have been more productive and beneficial to project staff. 35. There is also a mismatch between the IDA's Quarterly reporting mechanism and the supervision mission strategy. The Quarterly reports are never used during supervision missions; they seldom, if ever, elicit responses from the Bank; and, finally, seem to be a fairly futile exercise. 36. The Bank could also perform a valuable role in staff development through the promotion of staff development workshops, preparation of Project Management Manuals, and in assisting the project develop performance indicators. P. Additional Activities 37. School Mapplng. PEP began the planning process for a follow-on project as early as 1990. A school mapping project, which arose out the deliberations on district selection, was initiated and to date 25 districts have been mapped. This exercise is very valuable for the overall planning processes of 1OEC. 38. Physical Survey of Schools. In view of the Government's intentions to play a great role in school ccnstruction, rehabilitation and maintenance, PEP declded that a physical survey was necessary to determine the exact state  - 25 - of schools and to help assess the amount of assistance required. With some assistance from DANIDA, a survey system was developed and tested. This will now be used for all future schools' physical planning. 39. PIPE Preparation. PEP staff, especially In the last six months of the project, were very actively involved in PREP preparation. It is thanks to their efforts that the new project, 8PEP, was able to become effective, with minimum disruption, in July of 1992. 40. Conclusion. PEP was a success by virtue of its impact on the shape of national primary and basic education programs. While there is some truth in saying that in view of the situation obtaining in the 1980a almost any intervention would succeed, this should not detract from the fact that PEP succeeded in focusing public attention to the needs of the sector, developed and tested strategies for improvement, made a positive impact on classroom teachingllearning behavior, Increased student achievemwnt scores, and led to the development of a follow-on project which has moved away from a discrete project approach to development in favor of a program approach, thus operating on the scale needed if Education for all 2000 is to be remotely achievable.  - 26 - PART II. STATISTICAL IORITION Relevsat IDA Credits hiLl' M WM I RIUVAWN TO le rF90E Tlib_~~~~~~~yor ofr r ____xa_m I4NW 19015 Wine lople_sd. The rede i- deigned to .t 0In Isyrsuin A*riuitwel Nmr Va bt qupd tod releen mlddle l W bestblahing * BS dree tInli fi grs 1esiense. Preljwt Iqiimntern stld e ait 8 yers but resumed In early 1 4 1ainl ls,p eomntd. The ejeet he presex r en the blneoering Wuectin Cles ng e rcl n a ef the tcni n trunin '.V/7. r rleiny the tu ef InserI ~~~~e d, rln _t hreuh et_rethin te Icnle ef bean tnd deleinge n HIS. ;0474W 1900 Usingt Inlmtb1n. loe prejeet s o o tde a o e Earthquake Sahel CIeon as rans ebutt 11 Jae e le l the ;sabitlen 02/a. rtae fed ara nd Intedue eartque esistantdesign 1 fetres late r_Wentute - ewhe blOcing. lhoeet safes prlmaing start, bu ae.bde etlt m en a ntrets f e required a eubtetlWol ml.ing -as . ent cueIe durign PY't 0 el-9 II 10EP _W Sese .ff..ti, The preJes amid lr.we th welalty oF prl_ry ima PrImry 19902 07/91. Oduestlein lneres uwitable &soe to primry Eucation euheel -I etrente te managemenf t* ferml nd n.e-,erml Primary eduetien delivery system.  - 27 - Table 2: PLANNED, REVISED AND ACTUAL DATES O PROJECT TIMETABLE Item Planed Date Revised Date Actual Date - Identification 12181 - Preparation 03/82 - Pre-Appraisal Kissio:. 11182 - Appraisal Mission 07/83 - Issues Paper 08183 - Credit Negotiations 01/84 - Board Approval 04/24/8' - Credit Signature 07111/84 - Credit Effectiveness 12/04/84 - Closing Date 06/30/89 06/30/92 06/30/92 - Project Completion Report 03131193  - 28 _ Disbursemsnte Table St ESTIMATED AND ACTUAL CUMULATIVE DISBURSEMENTS (US$ Millions) IDA Fiecal Year Estimated Actual g and Semester Cumulative Cumulative Disbursed 1985 'lt (07184-12184) 0.19 - 2nd (01/85-06/85 0.78 0.04 - 1986 1st (07185-12185) 1.81 0.19 1.5 2ad (01/86-06/86) 3.33 0.40 3.1 1987 1st (07/86-12/8 5.20 2.39 18.7 2nd (01/87-06/87) 7.15 2.39 18.7 1988 1st (07187-12187) 9.03 2.81 22.0 2nd (01/88-06/88) 10.60 4.21 32.9 1989 lst (07/88-12/88) 11.85 4.21 32.9 2nd (01/89-06/89) 12.78 5.32 41.6 1990 lst (07189-12/89) 5.81 45.5 2nd (01/90-06/90) 6.89 53.9 1991 1st (07/90-12/90) 6.89 53.9 2nd (01/91-06/91) 6.89 53.9 1992 1st (07/91-12/91) 6.89 53.9 2nd (01/92-06/92) 7.78 61.0 1993 06/92-09/92 8.61 67.4  - 29 - Project Implementation Table 4: DMPLEINETATION INDICATORS Appraisal Indicators Estimate Actual 1. Students, Teachers and Schools Covered 11 (a) Formal Education Students 13b,968 370,357 Teachers 3,500 8,374 Schools 700 1,861 (b) Non-Formal Education women 24,183 Out-of-School Children 37,522 Adult Education Programs 22,106 2. Construction of Malor Buildings - KOEC Building (PTU) 1 1 - Sanothimi Educational Complex CTSDC Building 1 1 OCE Building 1 1 Educational Library 1 1 Hostel Building 1 1 - Regional Educational Directorate Offices (Pokhara and Dhankuta) 2 2 - District Education Offices (Dang, Surkhet, Dhankuta and Tanahu) 4 4 3. Resource Centers Construction 76 133 4. School Rehabilitatiox Program 700 1,326 5. Staff and Positions - Field Coordinators (FC) 12 18 - Resource Persons (RP) 76 96 - Subject Curriculum Specialists 3 3 - Assistant Subject Specialists (PFU, P8SU, P1U) 33 33 - Field Coordinators for Non-Formal Education 6 - Non-Formal Education Specialist 1 - Non-Formal Subject Specialist 14 - OCE Examiners 4 4 6. Training (see Table 4.1) 7, Curriculum Development (see Table 4.2) 8. Non-Formal Education (see Table 4.3)  - 30 - Table 4 - cont. Appraisal Indicators Estimate Actual 9. Evaluation Report (see Table 4.4) 10. Office of Controller of Examinations (see Table 4.5) lt Actual coverage of training, materials and school rehabilitation programs in the six districts. Table 4.1: IMPLEMENTATION INDICATORS: TRAINING 1. The PSTU (Primary Supervision and Training Unit) has been responsible for imparting various types of training. It provided training to the RPsIPCs teachers ont a. Basic Needs Teacher Training (150 hours) b. Educational Improvement Training c. Subject-vise Training d. Educational Management Training e. Curriculum Dissemination Training f. Extra Curricular Activities Training g. Additional Input Training 2. Training Modules The different training modules under each type of training are as follows: A. Basic Needs Teacher Training (150 hours) i. Module 1l Teaching Methods - 12 days ii. Module 2: Educational materials - 12 days iii. Module 3s Evaluation and learning strategy - 12 days B. Educational Improvement Training i. Grade teaching - 12 days ii. Multi-grade teachlng - 12 days C. Subject-vise Training - 12 days i. English training ii. Math training iii. Science training  - 31 - Table 4 - cont. D. Educational Management Trainint L. ID (Headmaster) training - 12 days ii. Supervision training E. Curriculum Dissemination Trainina l. Grade 1 Curriculum New Material Training 12 days P. RStra Curricular Activities - 6 days G. Additional InPut Training i. Special Education - 12 days ii. Health and Nutrition - 12 days 3. Training Strategy Each training module operates through the cascade training module. *The following are the targets and achievements of the projects Training for Trainers No. of Trainers Planned Achievement Training Category 1984-92 Achieved Percentage 1. Teaching Methods Training for FCs/RPs (12-day) 88 s8 100 2. Educational Materials for FCsIRPs (12-day) 88 88 100 2.1 Educational Materials for FCs/RPs (Revised Package) 36 36 100 3. Learning Strategies and Evaluation for PCs/iRPs (12-day) 88 88 100 4. Supervision Training for FCs/RPs (12-day) 136 136 100 5. Grade Teaching -aining for FCsIRPs (10-day) 136 134 100 6. Multigrade Teaching Training (started since 1989/90) 124 124 100  - 32 - 7. Extra-curricular Actlvities Training for FCs/RPs (6-day) 145 145 100 8. Content Tralning for Trainers (12-day) (a) English 67 53 79 (b) Mathematics 63 49 77 (c) Science 55 41 74 Trainina for Teachers and Managers No. of Teachers Plnned Actual Achievement TraininA Category (1984-1991) in I 1. Basic Needs Teacher Trainjg - Teaching methods 5,346 5,046 94 - Educational materials 5,651 4,933 87 - Evaluation and learning strategy 2,510 2,512 100 2. Instructional Improvement Training - Grade teaching 1,307 1,034 79 - Multi-grade teaching 646 188 29 3* Content Training - English 1,832 711 39 - Mat.ematics 1,832 676 37 - Science 1,852 702 38 4. Educational Management Trainig - Headmasters Training 380 345 91 5. Extra Curricular Activities 1,139 1,144 100 Sourcess Primary Education Projects A Report on Quantitative Performance of the Project (February 1992). PSTU (Primary Supervision and Training Unit) Sanothimi. DEI (District Zducation Inspectorate Office), Jhapa, Dhankuta, Tanahu, Kaski, Dang and Surkhet.  - 33 - Table 4 . cont. Table 4.2s IMPLEMENTATION INDICATORSt CURRICULUM DEVELOPMENT New Grade 1 Curriculum Materials 1. Phase I. 1991 The new grade 1 curriculum materials were produced in the subjectst i. Nepali (Mero Palilo Kitab) ii. Mathematics (Mero Garit) iii, Sociocy (Mero Sero Phero) 2. The number of RCs, schools, teachers and students Involved in the first phase were as follows: Phase I, 1990 District RCs Schools Teachers Students 6 12 24 40 3,500 3. Phase II. 1991, New Grade 1 Curriculam Materials In phase I1, the new grade 1 curriculum materials were implemented with the following strategy: I. The provision of textbook and workbook was made In all the three subjects, Nepali, Mathematics and Social Studies. ii. Textbooks; shared 1:2, or 1:3. iii. Textbooks stored in classroom. iv. Work book individual. Implementation Strategy as followss District RCs Schools Teachers Students 6 24 330 457 33,842 Training: 4 days training for all the teachers.  - 34 - Table 4 - cont. 4. Phase III, 1992, New Grade 1 Curriculum Materials In 1992 the new grade I curriculum materials were used in 600 schools of PEP districts 21 District RCs Schools Teachers Students 6 45 600 998 50,000 Trainings 12 days for trainers; 12 days for teachers. 5. Evaluation Reports 5.1 Interlm Reports on the Introduction of New Curriculum Grade 1 Materials, May 1990. 5.2 Reports of the Review Meeting, July 1990. 5.3 New Grade 1 Curriculum Materials; Impact Study, August 1990. 5.4 New Grade 1 Curriculum Materials; End of Year Evaluation, February 1991. 5.5 New Grade 1 Curriculum Materials; Field Visit Reports: i. Dang, April 1991 ii. Dhankuta and Jhapa, April 1991 iii. Kaski and Tanahu, April 1991 5.6 New Curriculum Materials Program; Draft Report; School Evaluation; First Phase. July 1991. New Grade 2 Curriculum Materials 1. New Grade 2 curriculum materials were produced in the subjectes Nepali, Mathematics and Social Studies. 2. In 1991 these materials were used in 30 schools. 3. In 1992, the new grade 2 materials are being used in 330 schools. 2/ The new grade 1 curriculum has been approved by MOEC for National dissemination during the current school year, starting in January 1993.  - 35 - Table 4 - cont. Develo_ment of the Learming Outcomes 1. A draft paper on the learning outcomes after completing the primary cycle (grades 1-5) was prepared as an outcome of the 6-day seminar on this topic. The draft of learing outcomes is in the process of field testing. Table 4*3s IMPLEMENTATION INDICATORSs NON-FORMAL EDUCATION 1. Programs Non-formal programs were started in 1987. The non-formal progrems ares L. Out-of-School Program ii. Womea Education Program iii. Adult Education Program iv. Environmental Education Program v. Community Reading Center B ref Olln of Eac Prram Trainers, Trainor's Reresher No. of Particl- Duration Training Traling pant. Enrolled Proaram ~~Oblectiv yen(Moth) 2 Gae mewys OPer Centter Out-of4chool - to provide basic 9 * 25 Progra literay skillei (Sioho Sadaon S) - to encourage studnmt enroll tn primary schools. Out-of-Shool - to sustin litereay; 0 6 no 25 Program I - to provld. functional (Sikeha Saden 1) education up to grade 5. Women - to make IIterate; 9 is 8 26 Education X - to provide fnctional shills tralning on Ilit. related activities. Women - to Suin lteracy; 6 a no 25 Education It - to gIve advanced functional skills trolnlng on llto related activitles. Adult Educstion - to make IlItersat and 9 0 8 is give functional nowledge.  - 36 - Table 4 - cant. 2. Achievements Centers and ParticiDants (1987-1992) No. of Centers No. of Participants Programs 1987-1992 Enrolled Out-of-School Program I ) (Sikeha Sadan I) ) ) 1,495 37,522 Out-of-School Program II ) (Siksha Sadan II) ) Women Education 975 24,183 Adult Education 917 22,116 Environmental Education 310 n.a. (schools) Commmnity Reading Centers 173 n.a. n.a. - not available 3. Evaluation Reports L. Effectiveness of the out-of-school program based on Surkhet district (1989). ii. Impact and the Status Report on the Women Education Program phase I based on Surkhet district (1990). iii. Impact and the Status Report on the Women Education Program phase 1I (1991).  - 37 - 4. Materials prepared in the Non-formal Units Name of the Programs Name of the Materials Target Group Out-of-School Program I Package (Siksha Sadan I) Naulo Bihan (early morning) Part I Participants 0 a Part TI Test Paper Test paper based on Naulo Bihan Part I a a Part I Training Manuals Trainer Manual Trainer 0 a Facilitator Advocacy Book Sikaha Sadan Ma Padhaun Parents Out-of-School Program II Package (Siksha Sadan II) Nayan Fadko (New Path Part I) Participants * U ( * II)U Women Education I Package Mahila Shaksharta (Women Literacy Book) Ghar Angan (Home and Courtyard) Test Paper Test paper based on Mahila Shaksharta a 0 a Ghar Ansan (Rome and Courtyard) w Training Manuals Trainer Manual for Women Idu. Program Trainer a a a a a a Facilitator Women Education XI Package Gaon Besi Part I Participants a a a II a Adult Education Training Manual Trainer Manual for Adult Edu. Program Trainer * * a a a 0 Facilitator Environmental Booklets School and Education Program Posters Cmomunity Notes in each program an Implementation Strategy book is available.  - 38 - Table 4 - cant. Table 4.4: IMPLMENTATION IDICATORS: EVALUATION AND STUDIES The Evaluation Unit's mandate vas to monitor the project's progress and determine its impact. The lists presented below gives the details of the Evaluation Unit's output. The EU's work was based onu i. Baseline Surveys ii. Training Nodules iii. Impact Studies of PEP activities A. Years, 1985-1989 1. Training in School Managemeut for PCs and RP8s An Evaluation Study 1985186 2. An Evaluative Study Report on Primary Zducation Projects CERID 1985186 3. District Level Training for Primary School Teachers: An Evaluative Study, 1985186 4. An Evaluative Study in Educational Materials Training Workshop for FCs and BPs, 1986/87 5. Seminar for Neadmasters of Resource Centers, 1986/87 6. Evaluation of Training in Project Implementation Strategies and Teaching Methods for RPs, 1986/87 7. An Evaluative Study Report on Materials Development (Refresher Training) Workshop for FCs and RPs (1985 Group), 1986/87 8. Data Profile of Baseline Surveys 1985/86 9. Data Profile of Baseline Survey 1985/86s 1986/87 10. Training Data Profile, 1987/88 11. 12-Day In-Service Teacher Training at Project District (1985 and 1986 Group), 1987/88 12. Nodule III Supervision Training for PCs and RPs (1985 Group), 1987/88 13. Module III Supervision Training for RPs (1986 Group), 1987/88 14. 10-Day Educational Materials Training Workshop for Primary Teachers (1985 Group), 1987/88  - 39 - Table 4 - coant. 15. Evaluation Report on the Training of Learning Strategies and Learning Evaluation (Module 5th and 6th), 1988/89 16. Learning Strategies and Learning Evaluation Training for FCe and PPs (1985 and 1986 Group), 1988189 17. An Interim Evaluative Study Report on Primary Education Projects CERID, 1988/89 B. Years 1989190 1. Evaluation of Educational Materials Training Vorkshop for PC9 and RPs, 1989/90 2. Analysis Report on Educational Materials Training Workshop, 1989!90 3. Analysis of Baseline Data, 1989190 4. Evaluation of District Level Training (150 hrs.), 1989190 5. Evaluation of District Level Training in Materials Development 6. Analysis of Scores of 150 hrs. Training, 1989190 7. Preparation of District Selection Criteria for Proposed Primary Education Project, 1989/90 8. Development of class observation form, November 1989190 9. Preparation of Summary Sheet of Training, December 1989190 10. Preparation of Summary Sheet of Training, December 1989190 11. Development of Computer Program of Teachers Behaviors in Classroom, January/February 1990 12. Revised Quantitative Performance of Project (1989/90) 13. Baseline Survey of Selected School (PEP and Ron-PEP Comparative) 14. Non-formal Education Need Assessment (Dang, Illaka No. 9) C. Years 1990/91 1. An Impact Study of PEP Inputs on Student Achievement, February 1991 2. An Impact Study of the Training (Basic Needs) on Teachers Behavior in Classroom, January 1991  - 40 - Table 4 - coat. 3. A Comparative Analysis of Students Data: Repetition, Promotion and Dropout Ratee (Baseline Survey of Schools), January 1991 4. Revised Quantitative Performance of the Project, December 1991 5. First Phases New Grade 1 Curriculum Materials Evaluation, July 1991 6. Profile of Training Data D. Program for 1991192 1. New Grade 1 Curriculum Materials Evaluation School Survey 2. New Grade 2 Curriculum Materials Evaluation 3. Utilization of Resource Centers and RPe 4. Non-formal Education Program: Advance Level Women Education Program Advance Level Out-of-School Education Program 5. Quantitative Performance of the Project 6. Baseline Data 7. Training Data Profile 8. Inter-District Grade 5 Test 9. Introducing Criterion Reference Tests on Grade 1 Materials  - 41 - Table 4 - cont. OF SWUNTISS (OMt A. Tpalnipa ad RnaaCrd tit Iosn mf JrnltnIii&5anmlnanM.r Zsaiwar I 1. Subject TrainIng for ritih Cnltete. am 0l1 T Sbjet Examinaer Spool llao and Resource 144 Teihort/Sub (Eastern,, ad Contral) Pereans regin a. PElac.of SsC OhE Speleiite=i dI 11 Tea hor/Subject ExAmnlatiao (Rule. and Exp e,h ruJet Regultlon e ef Examinatien) 44 PT5ru 8. SubjeY Trainin for SLC lCE Sp e lt 10 134 14 Teher/Subject Exalinero - moths, sce Resource Per7 epert. end 8ubJ rla (central and Edn_ e9 Vector Region Spend) 4. SemInar for Hadol saedtisn Britieh Coneunlt. Head 71 71 Teacher/Subject = 9boe L r th nndtr EOCminer Cenueetion tter ert. S. "Wd i qu.tlon Paer Ned Eamuilner betln 11* 11* Teacher/subjet onetruetlen workib" Poter een d (xe tem.. 33 ierrellte Ce"rD ibrtern Sco end Nid.'s.teorn region based) S. Seminar for Srmration *nd Examiner btion 44 is 142 T&acher/Subject of olti-Al"""achme etter aNd OC Ep. construction erkehop Spocistoil.tsr (aC;nt:l Region based, 7. eminatIon refo, mminer tnd xinr at 1 TnherSubjet (Central. * batnd Wectorn 81tter aW OC cher/t.bj and For Western Region baso oed) S. Adailnetrative Saff Training OC! specieoIIata and 2 2 Teacher/Subject (Central level Keth.andu) Rameures Peraeen xet 9. SemInar for Innal Model OCC SpeIall .t. end 10 10 Teacher/Subject cluestion PaperReorepfw (Central level. Kothsendu) Export. 10. SubJect TraInIng for S.C OCE SpecIal lots 100 100 Teacher/Subject 11. SubJect Training for MeC OCE Special lafte ed Resource 17 17 Te*achr/Subject Exmi nor. Person Expert (Emnatern Regional) 12. Subject Training for SLC OCE SpecIalleft and Raeourc 17 97 Teacher/Suject examinor. ereent s Expert 18. Pellcy of S.C Examination amI Spec Il Its and Reource 1i 11 Tehr/boc (Rule. sod RegulatIon. Person Expe*rtSbo of Exaualnatlena) xr 14. subject Training for SLC British Conaultent. eNd 3 U echrSujc Exealner., (Kath, Science and ce special letowpr Mol elab Kathanu based)lxer 18. SubJect TrainIng for MeC British consultant 71 71 Teacher/Subject Examinter. CPo&hara) and OCE Conelulnt. xpr 16. SemInar for Model bastion OCE Special lot., beeatleo5 5 Teacher/subject Paper ConatructIon Setter Heand ExamIner and Expert (lCthsNdu bamad) British Conultonto 17. Seamecr for Model Eusotlon OCCIlSpocollet.I D and Reo"urce a as Teacher/uject Preparation 0(athumnul bae.d) Person Expert Sb 1*. Model QueStIon Paper CCIL Specialists and Raeaurc 20 OS Teacher/Slubject Construetion Workshop PaersnEpr (Pohere baed) IXO 19. model Question Paper OCE Special late aWd Remource 8So Teacher/Subject Construction Workshop Person Epr (Nape bun) baasoed)r 20. Model buetles Paper OmI Specialeto and Reesrce 80 0 Teasher/ Gobec Construction Werkahopor. Ea Surt O(athmnd based) hr 21. Model beetilon Paper OM! Special lets and Reource 20 25 Teacher/Subject Construction Workshop Person Epr (orert based)Esr  i,X 8 a | S *1 I idg5ii5j1  - 43 - Table 4 - cont. OFFICE OF COMPTROLLER OF EXAMINATIONS (OCE) Activities 1989/90 1. Prepared (MS) marking scheme for model questions (Eng + Math + Science) 2. Prepared statistics of 1988 3. Prepared MS for 20 subjects of 1989 4. Planning of co-ordination meeting of Head Examiners S. Preparation of Item Bank (English + Math + Science) 1990191 No. of Types of Trainig/Seminars/Workshops Trainers Particigants 1. Reform in the Question Papers Read Examiners, Question 30 Seminar (Nepali, History and Setters & OCE Specialists Geography) 2. Seminar for the Preparation 0 30 of Marking Schemes 3. Coordination Meeting of Head Examiners 30 Examiners and lead Examiners and Examlners (Math, Science and English) Activities 1. Preparation of Item Bank (English, Math, Science) - Field test of item In Katbmandu, Lalitpur, Bhaktapur, Sindhupalchovk, Surkhet, Kaski and Bank. 2. Printing and distribution 75 of Statistics districts  - 44 - Project Costs and Financina Table 5s PROJECT FINANCING (US$ million) SAR Actual Expense Category GON IDA UNICEF TOTAL GON IDA UNICEF Total 1. Civil Works 0.55 3.13 - 3.68 0,49 2.68 - 3.17 2. Building Materials and Furniture 0.17 2.28 - 2.45 0.42 1.31 - 1.73 3. Equipment, Books and Journals 0.09 2.01 - 2.10 0.01 0.96 - 0.97 4. Professional Services and Project Studies - 0.80 - 0.80 - 0.04 - 0.04 5. Technical Assistance, Local Consultants and Miscellaneous Costs - 1.69 1.70 3.39 0.03 0.38 1.70 2.11 6. Educational and Other Consumable Materials 0.14 0.56 - 0.70 0.22 0.63 - 0.85 7. Staff Salaries, Allowances, Training and Operating Costs 1.01 1.03 - 2.04 1.69 2.39 - 4.08 8. Preparatory Activities - - - - - 0.22 - 0.22 9. Unallocated 0.24 1.28 - 1.51 - - - - Total Proiect Costs 2.19 12.78 1.70 16.67 2.86 8.61 1.70 13.17 Less Taxes and Duties 0.77 - - 0.77 - - - - Total Net ProJect Costs 1 1La a.2 aL.2J &&M L&i ^IIQ JaLZ  - 45 - Table do POJECT COSTS al Appraisal Estimates Actual Costs CUSS Million) (US$ Million) ComDonents Local Foreign Total Local Poreein Total A. PRIMARY SCHOOLS AND RESOURCE CENTERS 1.12 1.92 3.04 0.77 2.39 3.16 B. FIELD ADMINSTRATIVE OFFICES 1. BEGIONAL EDUCATION OFFICES Eastern Regional Office 0.20 0.18 0.38 0.06 0.20 0.26 Western Regional Office 0.11 0.12 0.23 0.05 0.21 0.26 Sub-Total 0.32 0.29 0.61 0.10 0.41 0.52 (Regional Education Offices) 2. DISTRICT EDUCATION OFFICES 0.56 0.34 0.91 0.82 2.43 3.25 Sub-Total 0.88 0.64 1.51 0.92 2.84 3.77 (Field Administrative Offices) C. CENTRAL ADMINISTRATIVE OFFICES 1. Ministry of Education & Culture 0.64 0.73 1.36 0.14 0.39 0.53 2. Curriculum Textbook 1.56 2.04 3.60 0.64 1.89 2.53 Supervision Development Center 3. office of the Controller of Examinations 1.37 1.08 2.44 0.36 1.02 1.38 Sub-Total 3.56 3.85 7.41 1.14 3.30 4.44 (Central Administrative Offices) D. STUDIES 0.50 0.06 0.55 0.03 0.08 0.11 Total BASELINE COSTS 6.06 6.46 12.52 Physical Contingencies 0.61 0.65 1.25 Price Contingencies 1.48 1.42 2.90 TOTAL MROJECT COSTS 8.14 8.53 16.67 2.86 8.61 11.47 al Costs financed by UNICEF not included.  - 46 - Prolect Results Table 7s PROJECT BENEFITS 1. Impact of Training on Teachers' Professional Knowledge The following table reveals that the grand average score is 33Z in pre-tests whereas it is 592 in the post-tests,31 indicating that the teachers have benefited from PEP training by improving their professional knowledge and skills. Table 7.1i PRE- AND POST-TEST SCORES (K) OF TEACHERS PROFESIONAL KNOWLEDGE IN PEP DISTRICTS (Total Number of Examineess 154) District Pre-Test Post-Test Z Gain Thapa 37 70 89 Tanahu 31 53 71 Kaski 34 58 71 Dang 29 54 86 Grand Average (X) 33 59 79 3/ Pro-tests are administered before the intended training and post-test are administered to participants once they completed the training course. Source: Evaluation Unit. PEP, MOEC.  - 47 - Table 7 - cont. Data in Table 7.2 indicates that dhe grand average percentage score of teachers' knowledge of the PEP districts is 59 whereas in the non-PEP districts it is 26. Table 7.28 AVERAGE SCORES OF TEACMERS' PROFESSIONAL KNOWLEDGE IN PEP AND NON-PEP DISTRICTS (Number of PEP Teachers: 154; non-PEP: 165) Average Difference Districts Score (2) in Scores (2) X Difference Thapa (PEP) 70 ) 44 169 Morang (Non-PEP) 26 ) Tanahu (PEP) 53 ) 29 120 Tanahu (Non-PEP) 24 ) Kaski (PEP) 58 ) 31 115 Lamjung (Non-PEP) 27 ) Dang (PEP) 54 ) 27 100 Dang (Non-PEP) 27 ) Grand Average - PEP 59 ) 33 127 Non-PEP 26 ) Sources Evaluation Unit, Primary Education Project, MOSC. 2. Impact of Training on Teachers' Behavior in the Classroom Table below (7.3) shows that the PEP trained teachers' behavior in classroom have been significantly improved.  - 48 - Table 7 - cont. TABLE 7.3: RATINGS OF TEACUERS' BEHAVIOR IN PEP AND NON-PEP DISTRICTS PEP Districtst Kaski and Tanahu Non-PEP Districtes Lamjung and Gorkha No. of PEP Schooles 30 No. of Non-PEP Schools: 26 No. of PEP Teachers: 60 No. of Non-PEP Teachers* 52 Maximam Scores 100 Min=mum Scores 0 Mean Difference in Components of Score Score Mean Difference Teachers' Behavior (1) (Z) (Z) 1. Lesson Plan Preparation and Use PEP 63.7 NPEP 2.7 60.9 95.7 2. Types of Teaching Methods Used and PEP 70.5 Appropriateness to the Lesson Taught UPEP 33.0 37.4 53.1 3. Use of Educational Materials PEP 71.4 NPEP 37.9 33.4 46.8 4. Students' Participation in PEP 74.8 Learning Activities NPEP 48.5 26.2 35.0 5. Evaluation of Lesson Taught PEP 74.5 NPEP 32.7 41.8 56.1 6. Homework Assignments PEP 72.5 NPEP 23.1 49.4 68.1 7. Overall Achievement of Lesson PEP 66.2 Objectives NPEP 33.9 32.3 48.7 8. Overall Impression of Observers (classroom management, PEP 66.7 motivation and presentation) NPEP 32.7 34.0 51.0 Sourcpi Sources Evaluation Unit, Primary Education Project, MOEC.  - 49 - Table 7 - cont. 3. Imgrovements in Students' Promotion, Repetition and Dropout Rates In March 1990, a study to determine the impact of the PEP inputs in terms of repetition, promwtion and dropout rates, based on student data of PEP and non-PEP adjacent districts, was conducted. The study showed that PEP inputs have contributed to a reduction of wastage in the primary education. Repeater rates are lower in all classes of PEP districts, by gender and irrespective of gender, compared to the non-PEP districts. The combined data show that in the non-PEP districts the repeater rates are greater by 8.OZ compared to the PEP ones. The promotion rates of all classes by gender and irrespective of gender are higher in the PEP districts compared to the non-PEP districts. According to the combined data (grades 1 to 5) there is 12.9Z greater promotion in the PEP districts compared to the non-PEP districts. The new entrant rate of class 1 in the PEP districts is higher by 6.5Z than non-PEP districts. The new entrant rates of other classes (grades 2 to 5) of PEP districts are lower than non-PEP ones, and this is because of greater rates of promotion from lower grades and lower rates of repeaters in grade 1 in the PEP districts. The dropout rates within an academic year (i.e. computed taking the difference of initial and end of academlc year enrollment) are lower for all classes irrespective of gender in the PEP district compared to the adjacent non-PEP adjacent districts. The grand total data (grades 1 to 5) show that the dropout rate is greater by 6.7Z in the non-PEP districts than PEP ones. The dropout rates between academic years, irrespective of gender, for all classes in PEP districts, are lower than non-PEP districtst there 8.41 more dropouts in the non-PEP districts compared to the PEP adjacent districts.  - 50 - Table 7 - cant. 4. BmLrovement in Students' Achievements. A study published In February 1991 vas aimed at detemining student achievements in the subjects taught at prlmry level (i.e. Nepali, Social Studies, Mathematics, Health Education, Science and Health Zducation and English) and at comparing student achievement levels in PEP and non-PEP districts. Table 7.4: DIFFERENCES IN STUDEN S' POST-TEST SCORES IN PEP AND NON-PEP DISTRICTS PEP Non-PEP Post-Test Post-Test Difference In Diff mean Diff Mean PEP and Subj ect Score (Z) Score (Z) Non-PEP Scores Diff I Nepali 62.5 47.5 15.0 31.6 Social Studies 60.2 39.5 20.7 52.4 Health Zducation 67.3 46.4 20.9 45.0 Mathematics 57.5 36.3 21.2 58.4 Science and Health Education 70.2 56.3 13.9 24.7 English 61.7 37.3 24.2 64.9 Grand Total 63.2 43.9 19.3 43.9 The findings indicate that the academic achievement levels of the PEP students in all subjects In the post-test are significantly higher than the non-PEP students.  - 51 _ status of Coeante Table 8S COMPLIANCE WITH MAJOR COVENANTS Credit Agreement Status Description of Covenant Comments Section 3.02 ok Employment of consultants satisfactory to the Association. 3.03(a) ok Insurance of Imported goods. 3.03(b) ok Goods and service to be used exclusively for the project. 3.04 ok Establish a Project Implementa tion Board (PIB). 3.05 ok Establish a Project Implementa- tion Unit (PIU) with such power. staffing and funds as shall shall be required. 3.06 ok Prior to the establishment of a cluster of schools establish a Resource Center Management Comittee. 3.07 ok Prepare and furnish full working drawings of the buildings. 3.09(c) Ok Use its best efforts to, upon completion and based on actual needs. appoint such staff as regular staff at adequate levels of seniority. 3.10(a) ok Furnish, plans, specifications, reports, contract documents, construction and procurement schedules. 3.10(b) ok Maintain records and procedures, disclose use of goods and services, enable IDA to visit facilities and sites and examine records and documents, furnish Information, etc. 3.11 ok Carry out the development of the Sano Thlm. Campus in accordance with the Master Plan.  - 52 - Table 8 - cont. Credit Agreement Status Description of Covenant Comments Section 3.12 ok Take all such action necessary to acquire such land and rights for carrying out the project and furnish evidence. 3.08(a) not Evaluate the adequacy of the ) NOEC was reminded ok organizational structure of KOEC ) about this covenant regional and district offices... ) during consecutive for cost effective Implementa- ) supervision mis- tion of the borrower's ) sions. MOEC agreed decentralization policies. ) to conduct the 3 evaluation lime- 3.08(b) not Furnish for review the results of ) diately after the ok the above evaluation and a draft ) March 1987 Super- comprehensive plan for the ) vision mission and Improvement of primary education ) subsequently to pre- and its administration. ) pare the plan. At ) the time of the 3.08(c) not Thereafter taking into accouAt ) January 1988 super- ok IDA's comments implement the said ) vision, MOEC had not recommendations and adopt and ) done so. The need utilize such comprehensive plan. ) for the reform vas ) considered not great X enough to cause IDA ) to take harsher ) measures and the ) covenant was dropped ) as unenforceable. 3.09(a) partially Select suitably qualified Partial compliance. ok candidates fromthe education cadre of MOEC for training under the project. Other Covenants 4.01(a) ok Maintain records and separate accounts to reflect resources and expenditures. 4.01(b) ok Ci) maintain records on statements of expenditures; (ii) retain such records until one year after the closing date;  53 - Table 8 - cont. Credit Agreement Status Description of Covenant Comments Section (iii) enable ID to ezine such recorde. 4.01(c) ok Have the accounts referred Often delayed. to In 4.01(a) and 4.01(b) audited and furnished to IDA. ok - Covenant complied with.  - 54 _ Use of Bank Resources Table 9J MXSSXON DATA SY STAUG OF PPOJECT Total Performance Stage of Mouthl No. of Days In Specialization Rating Types of Project Cycle Year Persons Field Renresented 4/ Status 51 Problem 6/ Identification Mission U1187 2 30 ED, C - - Post-Identifi- cation Mission 03182 1 23 RD - - Preappraisal Mission 11182 4 112 ED(2), A, MS - - Preparation Mission 04183 1 15 ED - - Appraisal Missiua 07/83 3 80 ED, A, MS - - Follow-up mission 05184 2 15 ED, A - Follow-up Mission 11184 1 10 ED - Supervision I 05185 1 9 A - Supervision II 07185 1 17 ID 3 P, x Supervision III 02/86 1 11 RD 4 m Supervision IV 04/86 2 20 ED, A 3 F Supervision V 07-08186 3 26 A, PO, RD 2 P Supervision VX 03187 2 32 SD, PO 2 N Supervision VII 06-07/87 2 16 A. PO 2 M Supervision VIII 01/88 2 25 A, RD 2 x Supervision IX 10-11188 2 26 RD, A 2 K, PR Supervision X 10-11/89 2 40 ID, SC 2 K, F Supervision XI 01-02/89 2 30 RD, A 2 F, PR, M Supervision nIl 05/90 1 5 SC 3 Supervision XIII 10190 2 12 EC, PO 3 F, x Supervision XIV 03-04191 2 52 IC, PO 2 x Supervision XV 09191 1 19 RC 2 Supervision m 05/92 1 14 IC 1I 4/ ED - Educators A - Architect; C - Division Chief; PO - Program Officer; A - Architect; MS - Management Specialist; XC - Economist. 51 1 - problem free or minor problems 2 - moderate problmss 3 - major problems; 4 - problem project. 61 M malnasgerial; P - political; F 8 Financial; PR a procurement.  ft55 m ho 1d10 Pivlr w J_fe d_ FAF PM PM/ 41o pv 1mm Thu.uoh Ak..eatl 0.1 8.2 90.8 90.4 5.1 Apperail.lhv.ub Wth_ ti,.noae 18.8 18.5 Suverulelon (Buek 6f) 0.1 4.4 8.6 11.0 14.0 10.8 12.8 18.8 12.0 5.2 92.5 fw_e"Ilon (ololdoot NIeu) 9.6 6.9 B.2 0.5 15.9 TSAL 0.1 6.1 90.0 49.8 5.6 11.0 14.0 10.8 14.9 2.5 17.2 5.7 181.8 -__ __ ___ _ __  IBRD 17639 59' N*%% 82 841 M 9 MARCH 1964 "'c' >, - '- C H I N A NEPAL fOA5CKULA 0 , . H U M L A P 'RIMARY EDUCATION PROJECT 30 S2