Tanzania - Fourth, Fifth, and Seventh Education Projects

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 14745 PERFORMANCE AUDIT REPORT TANZANIA FOURTH EDUCATION PROJECT (CREDIT 371-TA) AND FIFTH EDUCATION PROJECT (CREDIT 607-TA) AND SEVENTH EDUCATION PROJECT (CREDIT 1056-TA) JUNE 29, 1995 Operations Evaluation Department This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. Currency Equivalents (annual averages) Currency Unit = Tanzanian Shilling (TSh) 1972 US$1.00 7.14 1975 US$1.00 8.05 1979 US$1.00 8.22 1980 US$1.00 8.18 1982 US$1.00 9.33 1990 US$1.00 199.44 1994 US$1.00 528.00 Abbreviations and Acronyms CEC Community Education Center CNE College of National Education (primary teacher training college) CURE Coordinating Unit for Research and Education DANIDA Danish International Development Agency DSA Dar es Salaam School of Accountancy IDA International Development Association MNE Ministry of National Education NBAA National Board of Accountants and Auditors NEC National Examinations Council NGO Non-Governmental Organization NORAD Norwegian Agency for International Development PAR Performance Audit Report PCR Project Completion Report PCU Project Coordinating Unit PIU Project Implementation Unit PMO Prime Minister's Office SAR Staff Appraisal Report TA Technical Assistance TCRS Tanganyika Christian Refugee Service TES Tanzania Elimu Supplies TTC Teacher Training Center VMTP Village Management Technician Training Program VTC Vocational Training Center Fiscal Year Government: July I - June 30 FOR OFFICIAL USE ONLY THE WORLD BANK Washington, D.C. 20433 U.S.A. Office of Director-General Operations Evaluation June 29, 1995 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Performance Audit Report on Tanzania Fourth, Fifth and Seventh Education Projects (Credits 371-TA. 607-TA and 1056-TA) Attached is the Performance Audit Report (PAR) for the Tanzania Fourth, Fifth and Seventh Education projects (Credits 371-TA, 607-TA and 1056-TA, approved in FY74, FY76, and FY81 respectively) prepared by the Operations Evaluation Department (OED). The Sixth Education project (Credit 861-TA) was audited separately (OED Report No. 10971, dated July 28, 1992). These three projects included investments throughout the education system: in primary schooling; secondary general and vocational/technical education; nonformal training; higher education; and in educational administration. The ratings of the three projects are as follows: Fourth Project Fifth Project Seventh Project Project Outcome Satisfactory Unsatisfactory Satisfactory Institutional Development Modest Negligible Substantial Sustainability Likely Unlikely Likely The poor showing of the Fifth project is explained largely by the fact that its emphasis was on support for the Government's Ujamaa movement of "villagization" which has since been abandoned, thus depriving the related investments of their raison d'8tre. The ratings shown above are in broad agreement with the findings of the three Project Completion Reports (PCRs). However, the Audit deems that ie PCR for the Fifth project has judged the Bank's performance somewhat generously. Moreover, it appears that-in parallel with the country's worsening economic situation-the codition of the three projects has deteriorated since the issuance of the PCRs. The pervasive problem of inadequate operation and maintenance budgets often means an under-use of specialized facilities and equipment. But there are a few encouraging signs of local communities starting to take charge of the needs of their schools. The Audit draws together common lessons from the three projects as well as from related components in the Sixth project. The most important ones concern the dangers of excessive optimism at appraisal; the wisdom of a gradualist approach to innovation; the need to verify thoroughly borrowers' implementation and recurrent financing capabilities; and the desirability of closer upstream consultation with implementing agencies and institutional beneficiaries. Attachment This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  FOR OFFICIAL USE ONLY Contents Preface ..................................................... 3 Basic Data Sheet ..... ............................................ 5 Evaluation Sum mary .... ......................................... 17 1. Introduction ............................................... 23 Historical Perspective ....................................... 24 Project Objectives ......................................... 25 Implementation Plan ........................................ 25 Project Costs and Financing Plans .............................. 26 2. Project Implementation ...................................... 27 Management .... ............................................ 27 Physical Implementation .... .................................... 27 Civil W orks .... ........................................... 27 Furniture and Equipment .... ................................. 28 Technical Assistance .... .................................... 28 Borrower Performance ........................................ 29 Bank Performance .... ...................................... 29 3. Project Outcomes ........................................... 31 Innovative Components ...................................... 31 Community Education Centers (Fourth) ......................... 31 Village Management Technician Training Program (Fifth) ............ 31 Diversified Secondary Schools (Fifth) .......................... 32 Other Components ......................................... 32 Medical Training (Fourth) .................................. 32 Vocational Training (Fourth and Sixth) ......................... 32 Primary Teacher Training (Fourth and Seventh) ................... 32 Accountancy Training (Fifth and Sixth) ......................... 33 Primary Education (Fifth and Seventh) ......................... 33 High School Science and Mathematics (Seventh) .................. 33 Educational Management (Seventh) ............................ 33 This report was prepared by Hans Heinrich Thias (Task Manager) and David O.M. Gooday (Consultant) who audited the project in September 1994. Therese Mackie provided administrative support. This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed widout World Bank authorization. 2 Contents (cont'd) 4. Findings, Lessons and Issues ................................... 35 Overview ..... ............................................. 35 Findings in Relation to Categories of Inputs .... ....................... 35 Civil W orks ..... ......................................... 35 Equipment and Furniture ......... ............................ 35 Technical Assistance .... .................................... 35 Lessons Drawn from Components .... ............................ 36 Community Education Centers .... ............................. 36 Village Management Technician Training ....................... .... 36 Diversified Secondary Schools .... ............................. 36 Medical Training .... ....................................... 36 Vocational Training ......................................... 36 Primary Education .... ...................................... 37 Accountancy Training .... ................................... 37 High School Science and Mathematics .......................... .. 37 Educational M anagement .... ................................. 37 Issues .... ................................................. 37 Avoid Extreme Dispersion .... ................................ 37 Simplify Implementation Structures .... ........................... 38 Prioritize .... ............................................. 38 Be Realistic .... ........................................... 38 Emphasize Flexibility .... .................................... 38 Examine Possibilities of Cooperation with NGOs .................. 38 Avoid "Aboveism" .. .. ...................................... 38 Concentrate on Quality of Project Design and Emphasize Continuity ..... 38 Take an Overview of each Component at Appraisal ................. .. 39 Annexes A. Studies ................................................... 41 B. Technical Assistance ......................................... 43 C. Fellowships ................................................ 45 D. Credit Agreement Covenants .................................... 47 3 Preface This is a Performance Audit Report (PAR) of three education projects supported by Bank Group credits during the period from July 1973 to December 1990. The Fourth Education Project (Credit 371-TA), for which a credit of US$10.3 million was approved in April 1973, was closed in December 1980 after an extension of the Closing Date of 30 months due to delays in completion of every component. The Fifth Education Project (Credit 607- TA) was approved in December 1975 for US$1I million and was closed on schedule in June 1982, with savings of US$3.94 million being cancelled. The Seventh Education Project (Credit 1056-TA), for which a credit of US$25 million was approved in July 1980 with cofinancing from Danish International Development Association (DANIDA) of US$20 million, was closed in December 1990, 45 months after appraisal estimate, after three postponements. An undisbursed amount of US$1.37 million was cancelled. The Sixth Education Project (Credit 861-TA) has been the subject of a previous PAR (OED Report No. 10971 of 1992), but is referred to occasionally in this Report to provide the necessary context. The PAR is based on several sources: (a) the three Project Completion Reports (PCR) issued as Reports Nos. 4703 (September 15, 1983); 5553 (March 27, 1985); and 10622-TA (May 4, 1992); (b) a review of the files and documents relating to the three projects, including Staff Appraisal Reports, Credit Agreements, Supervision Reports, correspondence files and studies financed by the projects; (c) discussion with Bank staff who had been involved with implementation; and (d) an OED mission to Tanzania in September 1994 during which discussions took place with Borrower staff who had been responsible for implementation, and 27 project-financed institutions were visited. The Audit is in general agreement with the PCRs prepared on the Fourth and Seventh Projects and emphasizes some of the findings. At the time of the Audit, the two major components of the Fifth Project were no longer operational. The Audit draws together common lessons learned from the three projects as well as from related components in the Sixth Project. Copies of the draft PAR were sent to the relevant Government officials, agencies concerned, and cofinanciers. for their review and comments. No comments have been received.  5 Basic Data Sheet FOURTH EDUCATION PROJECT (CREDIT 371-TA) Key Project Data (in US$ million) Appraisal Estimate Actual Total project cost 14.58 14.25 Cost underrun 2% Credit amount 10.30 10.19 Amount disbursed 10.19 Cancelled 0.11 Date physical components completed 12/77 10/80a Months since credit signature 56 110 Time overrun (%) 96 a. The Audit visited three of the four completed Community Education Centers (CEC) but was informed that those not completed at Closing were still incomplete due to lack of finance. The date estimated by the Completion Mission (6/82) is therefore incorrect. The date shown here is 6 months prior to the final disbursement (4/81). Cumulative Estimated and Actual Disbursements (in US$ million) FY74 FY75 FY76 FY77 FY78 FY79 FY80 FY81 Appraisal Est. 0.30 1.81 5.32 8.93 10.3 Actual NIL 0.24 0.78 3.55 6.41 8.01 8.71 10.2 Actual/est. (%) NIL 13 15 40 62 78 85 99 Staff Input (Staff Weeks) FY72 FY73 FY74 FY75 FY76 FY77 FY78 FY79 FY80 FY81 Preparation' Appraisal 3.0 25.7 Supervision 2.6 2.2 3.1 12.5 1.6 6.9 3.9 7.4 2.3 Note. a. An Identification Mission was carried out by the Overseas Liaison Committee of the American Council on Education, but no record exists of the staff input. The PCR notes that preliminary preparation was conducted prior to the Preparation/Appraisal mission. 6 Mission Data Type of Sent byv Month/ No. of Staff Date of Mission Year P'ersons Weeks Report Identification OLC/ACE' 07/71 NAb NA 11/71 Reconnaissance IDA 01/72 3(E,GE,TF) 3.0 03/72 Preparation/ IDA 07/72 6(E,2GE. 25.7 03/73 Appraisal TE,ME,A) Review IDA 11/72 2(A,.) 28.7 Supervision 1 IDA 06/73 3(TE,A,AD) 2.6 07/73 Supervision 2 IDA 03/74 1(A) 1.4 05/74 Supervision 3 IDA 05/74 1(GE) 0.8 07/74 Supervision 4 IDA 11/74 2(GE,A) 2.7 12/74 Supervision 5 IDA 01/75 1(A) 0.4 02/75 Supervision 6 IDA 07/75 2(TE,A) 9.4 08/75 Supervision 7 IDA 11/75 2(A,E) 1.7 12/75 Supervision 8 IDA 06/76 2(ME,A) 1.4 06/76 Supervision 9 IDA 12/76 1(TE) 1.6 03/77 Supervision 10 IDA 07/77 2(TE,A) 3.7 09/77 Supervision 11 IDA 03/78 2(GE,A) 3.2 03/78 Supervision 12 IDA 09/78 2(GE,A) 2.8 10/78 Supervision 13 IDA 04/79 1(GE) 1.1 05/79 Supervision 14 IDA 10/79 2(GE,A) 4.0 10/79 Supervision 15 IDA 05/80 2(GE,A) 3.4 05/80 Supervision 16 IDA 11/80 2(GE,A) 2.3 12/80 42.5 Completion UNESCO 04/81 N.A. N.A. 09/83 Maximum interval between missions 9 months Minimum interval between missions 2 months Average interval between missions 5.6 months Note: a. Overseas Liaison Committee of the American Council on Education. b. Codes: see page 14 below. 7 Other Project Data Item Original Plan Revisions Actual Identification 7/71 Reconnaissance 1/72 Preparation/Appraisal 6/72 Credit Agreement 04/13/73 Effectiveness 07/02/73 Closing 06/30/78 12/31/80 Borrower United Republic of Tanzania Executing Agency Ministry of National Education Allocation of Credit Proceeds (in US$) Original Actual Category Allocation Disbursement 1. Civil works (other than those in Cat. Ill) 4,000,000 3,840,201 II. Construction materials for CECs 200,000 394,243 III. Faculty of Medicine a. Civil works 600,000 1,622,825 b. Equipment, books and furniture 170,000 485,055 c. Technical assistance 1,170,000 637,879 IV. Furniture (Not Cat. Ill) 340,000 596,456 V. Equipment (not Cat. Ill) 690,000 1,241,944 VI. Consultants 250,000 1,373,785 VII. Technical assistance (noi Cat. III) 370.000 - VIII. Unallocated 2,110,000 - TOTAL 10,300,000 10,192,388  9 FIFTH EDUCATION PROJECT (CREDIT 607-TA) Key Project Data (in US$ million) Appraisal Item Estimate Actual Total project cost 15.(0 8.80 Cost underrun 41 Credit amount 11.00 11.00 Amount disbursed 7.06 Cancelled 3.94 Repaid, August 1994 0.60 Outstanding, Aug. 1994 6.46 Date physical components completed 6/30/81 12/31/82 Months since credit signature 65 95 Time overrun (%) 46 Cumulative Estimated and Actual Disbursements (in US$ million) FY77 FY78 FY79 FY80 FY81 FY82 FY83 FY84 Appraisal Est. 1.30 4.81 9.17 10.75 10.98 11.00 11.00 11.00 Actual 0.44 1.51 2.40 3.98 5.18 6.10 6.94 7.05 Actual/estimate 34 31 26 37 47 55 63 64 (%) Staff Input (Staff Weeks) FY75 FY76 FY77 FY78 FY79 FY80 FY81 FY82 FY83 Preparation 14.2 Appraisal 18.1 1.4 Supervision 3.4 5.1 6.0 4.7 5.4 4.4 9.0 3.0 10 Mission Data Type of Sent by Month/ No. of Staff Date of Mission Year Persons Weeks Report Identification UNESCO 04/74 NA NA NA Reconnaissance IDA/UNESCO 11/74 2(E.DC! 2.6 12/74 Reconnaissance IDA 05/75 1(AG) 3.6 05/75 Preparation UNESCO 05/75 4(2GE,A,EC) 8.0 05/75 Appraisal IDA 06/75 6(TE,AG,A, 18.1 12/75 GE,E,AE) Appraisal review IDA 11/75 2(DC,AG) 1.4 NA 33.7 Supervision I IDA 01/76 2(TE,A) 1.7 02/76 Supervision 2 IDA 06/76 2(TE,AE) 1.7 06/76 Supervision 3 IDA 10/76 2(TE,AC) 1.7 11/76 Supervision 4 IDA 01/77 3(AE,A,TE) 3.4 02/77 Supervision 5 IDA 07/77 2(TE,A) 3.7 09/77 Supervision 6 IDA 02/78 2(GE,A) 2.3 03/78 Supervision 7 IDA 09/78 2(GE,A) 3.1 10/78 Supervision 8 IDA 04/79 1(GE) 1.6 05/79 Supervision 9 IDA 10/79 2(GE,A) 2.4 11/79 Supervision 10 IDA 05/80 2(GE,A) 3.0 05/80 Supervision 11 IDA 11/80 2(GE,A) 2.3 12/80 Supervision 12 IDA 05/81 2(GE.A) 2.1 05/81 Supervision 13 IDA 10/81 4(GE,A,AC,DC) 3.9 12/81 Supervision 14 IDA 05/82 3(GE,TE,A) 5.1 06/82 Supervision 15 IDA 10/82 3(GE,TE,A) 3.0 01/83 41.0 Completion IDA 01/84 2(GE,A) 3.7 03/85 Maximum interval between missions7 months Minimum interval between missions3 months Average interval between missions5.4 months Note: Codes: see page 14 below. 11 Other Project Data Item Original Plan Actual First mentioned in files 07/02/73 First mentioned in timetable 04/09/74 Government's application 04/15/75 Appraisal mission 06/24/75 Negotiations 11/24/75 Board approval 12/30/75 Credit agreement 01/29/76 Effectiveness 04/30/76 03/23/76 Closing date 06/30/82 06/30/82 Borrower United Republic of Tanzania Executing agencies Ministry of National Education Prime Minister's Office National Board of Accounting and Auditing Allocation of Credit Proceeds (in US$) Original Actual Category Allocation Disbursement 1. Civil works 5,300,000 2,809,525 11. Furniture, vehicles and equipment 2,000,000 2,402,191 Ill. Project administration and operationil costs 550,000 1,125,340 IV. Consultants services 750,000 726,472 V. Unallocated 2,400,000 - TOTAL 11,000,000 7,063,528  13 SEVENTH EDUCATION PROJECT (CREDIT 1056-TA) Key Project Data (in USS million) Item Appraisal Estimate Revisions Actual Total project cost 55.50 34.00 Cost underrun (in US$ terms) 39% Credit amount 25.00 25.00 Amount disbursed 23.63 Cancelled 1.37 Repaid, August 1994 0.97 Outstanding, August 1994 22.66 Date physical components completed 12/86 12/88 12/90 12/89 12/90 Months since credit signature 75 123 Time overrun (%) 64 Note: a. Including US$20 million from the Kingdom of Denmark through DANIDA. Cumulative Estimated and Actual Disbursements (US$ Million) FY81 FY82 FY83 FY84 FY85 FY86 FY87 FY88 FY89 FY90 FY91 Appraisal estimate" 0.22 4.72 14.61 21.66 24.17 25.00 25.00 25.00 25.00 25.00 25.00 Actual 0.01 0.28 0.51 1.67 3.89 5.65 8.73 16.88 21.00 23.08 23.64 % Actual/Appraisal 5 6 3 8 16 23 35 68 84 92 95 Note: a. These figures have been extrapolated from Annex 1, Table II in the SAR, which combines disbursements from the IDA credit and the DANIDA grant, on the basis of the ratios between the two sources of finance. 14 Other Project Data Item Original Plan Revisions Actual First mentioned in files 11/77 Identification 10/78 10/78 Appraisal mission 06/79 06/79 Negotiations 04/80 04/80 Board approval 07/80 07/80 Credit signature 09/80 09/80 Effectiveness 12/80 12/80 Completion 12/86 12/88 12/90 12/89 12/90 Closing 03/87 06/89 12/90 06/90 12/90 Borrower United Republic of Tanzania Executing Agencies Ministry of National Education Prime Minister's Office Staff Input FY 78 79 80 81 82 83 84 85 86 87 88 89 90 91 Preparation 3.0 8.9 Appraisal 12.9 6.1 Supervision 4.0 6.1 7.3 4.3 2.0 9.4 8.3 13.5 2.8 - 3.0 15 Mission Data Type of Mission Sent by Month/Year No. of Persons Staffweeks Identification IDA 05/78 1(MP)" 3.0 Identification IDA 10/78 2(ES) 2.3 Preparation IDA 02/79 2(GE,TE) 6.6 Appraisal IDA 06/79 5(ES,E,E,ET,A) 12.9 Post-Appraisal IDA 10/79 3(ES,E,A) 5.1 Post-Appraisal IDA 03/80 1(ES) 1.0 30.9 Supervision 1 IDA 05/81 2(A,GE) 4.0 Supervision 2 IDA 11/81 2(A,TE) 1.4 Supervision 3 IDA 05/82 3(A,GE,TE) 4.7 Supervision 4 IDA 10/82 3(A,GE,TE) 3.9 Supervision 5 IDA 04/83 2(A,TE) 3.4 Supervision 6 IDA 10/83 4(A,A,GE,TE) 6.3 Supervision 7 IDA 06/84 2(A,A) 4.3 Supervision 8 IDA 03/85 2(A,TE) 2.0 Supervision 9 IDA 10/85 2(A,GE) 3.4 Supervision 10 IDA 02/86 3(A,GE,TE) 6.0 Supervision 11 IDA 11/86 2(A,TE) 4.6 Supervision 12 IDA 03/87 2(A,TE) 3.7 Supervision 13 IDA 08/87 2(GE,TE) 1.7 Supervision 14 IDA 12/87 4(A,A,A,GE) 9.1 Supervision 15 IDA 03/88 1(TL-) 1.3 Supervision 16 IDA 06/88 2(GE,GE) 3.1 Supervision 17 IDA 07/88 1(A) 1.4 Supervision 18 IDA 08/88 1 1.4 Supervision 19 IDA 07/90 I(GE) 2.4 Supervision 20 IDA 03/91 1(GE) 0.6 68.7 Completion IDA 08/91 2(A,GE) 3.7 16 Mission Data (Cont'd) Maximum interval between missions 23 months Minimum interval between missions I month Average interval between missions 5.9 months a. Codes for mission members: A = Architect AC = Accounting Specialist AE = Agricultural Educator AG = Agriculturalist DC = Division Chief E Economist ES = Educational Sociologist GE = General Educator ME = Medical Educator MP = Manpower Specialist NA = Not Available TE = Technical Educator TS = Educational Testing Specialist Allocation of Credit Proceeds Category Original Allocation Actual Disbursement (1) Civil works (a) Force account 1,000 (b) Under contract 9,000 8,780 (2) Furniture, equipment, textbooks, vehicles 5,500 11,390 (3) Technical assistance 1,400 470 (4) Research, Training 390 970 (5) Professional services 500 1,370 (6) Project administration 60 660 (7) Unallocated 7,150 - Total 25,000 23,640 17 Evaluation Summary Introduction 1. The economic conditions in Tanzania deteriorated rapidly throughout the period covered by these projects. This is illustrated by the fall in USS-Tanzanian Shilling exchange rate from I to 7.14 in 1972, to I to 528 in 1994, the Audit year. Also, education and rural development policies changed dramatically during the period, seriously affecting the achieve- ment of project objectives. Objectives and Content 2. The Fourth Project was appraised in June 1972. Its design was influenced by the "Ujamaa"' strategy of the time, which involved villagization of scattered communities. Thus it sought to provide community education centers in villages, training of primary school teachers, vocational and health training, as well as expanding secondary education and a study of management training. 3. The Fifth Project was appraised in June 1975, when the Fourth Project disbursements were already lagging substantially. Like the Fourth Project, it also set out to assist Ujamaa policy by providing training for management of some 7,500 villages; financing "diversifica- tion" of secondary schools; and studies of accountancy training, secondary school facilities and a survey of the primary education subsector. The Sixth Project (Credit 861-TA) assisted vocational, accountancy and management training and provided boarding facilities for female students of technical schools. Having been the subject of a previous audit (OED Report No. 10971 of 1992), this operation is treated peripherally in this PAR. 4. The Seventh Project was appraised in June 1979 and supported improvement and equity of primary education, particularly in disadvantaged areas; improved and increased science teaching in high schools, especially for girls; and strengthened examination management, educational material distribution and educational research. Implementation Experience 5. Some items in the Fourth Project were not fully prepared at appraisal; also technical assistance for the Project Implementation Unit (PIU) to be provided by a bilateral donor was considerably delayed. This delay, together with higher than expected inflation, eventually resulted in the deletion of the secondary school construction component. Only four of the planned eight Community Education Centers (CECs) were completed, one of which sited on a seasonally waterlogged area. Implementation of the Fifth Project was hampered by its complex administrative structure, with three project units, each being responsible for activities countrywide. Departure of bilateral technical assistance, in most cases two years prior to project completion, seriously impaired the effectiveness of the Village Management Technician Training Program (VMTP), while the Project Implementation Section of the Ministry of National Education (MNE) was handicapped by major staff shortages, aggravated by the responsibility the unit had for other projects involving 19 donor agencies. There was no provision for staff training in this project. The Seventh Project coincided with a severe downturn of the economy. Once again, the management structure was complex with two 1. A Swahili word meaning "togetherness" used to describe a policy of villagization in the 1960s and the 1970s. 18 implementation units under different ministries. Disbursement lagged seriously for the first four years of implementation. Shortage of building materials and requent turnover of technical staff contributed to the delays. Project scope was reduced with the deletion of a College of National Education (CNE) and two secondary schools. Results2 6. Despite the problems listed above and reduction in projcct scope, the Fourth and Seventh Projects achieved most of their objectives. The main components of the Fifth Project were not successful, due to changed national policies. The Audit was unable to find any up- to-date information about the VMTP since the Ujamaa policy had lapsed and there was no ongoing program which was related to VMTP. While home economics and sign-writing continued to be taught in many of the secondary schools assisted under the Fifth Project, the workshops were, in all cases seen by the Audit, unused for purposes of instruction. 7. Five of the Community Education Centers were functioning as primary schools at the time of the Audit, and two others had become secondary schools; only four were completed with project financing. Very little adult education is taking place, and the workshops and equipment are unused. 8. The achievements of the vocational training component in the Fourth Project have been further supported by an instructor training component under the Sixth Project. The training centers are in use, but the participation of employers in course design is limited, and the numbers of female trainees, in all fields except sign-writing and tailoring, are low. 9. The rural health center at Bagamoyo (Fourth Project) continues to provide highly practical training for medical students and fulfills an important need. 10. The Audit was unable to visit the two CNEs at Mtwara and Tukuyu. With assistance under the sixth project, the in-service CNE at Bagamoyo has been developed into an educa- tional management training center for educational managers, but the staff is also very actively carrying out off-campus training around the country. The laboratories constructed under the Fourth Project are unused. A considerable in-service program is continuing at other centers, notably Vikindu where short courses in agriculture, science and mathematics are conducted. I 1. The quantitative achievement of the Seventh Project in primary school construction was considerable, especially in the light of the scattered distribution of schools. The building program included classrooms, offices, teacher houses and pit latrines. It is therefore surprising that in some schools where lack of water was critical, nothing had been done to alleviate this problem. Furniture was well constructed but insufficient. Books and educational equipment such as maps were suitable and adequate in number, but suspiciously clean-being probably kept unused in cupboards to prove to inspectors that stocks were handled with care. 12. Laboratory construction (Seventh Project), together with staff houses and equipment, has made an important impact on science teaching in high schools, but the provision of expa- triate teachers brought only temporary relief to the teacher shortage since the project provided no support for the training of more Tanzanian teachers of science and mathematics at the higher secondary level. 2. Please refer to Table I at the end of this Summary for aggregated performance ratings in the three main categories (project outcome/institutional development/sustainability) for each of the three projects. 19 13. The Seventh Project financed a considerable expansion of the National Examinations Council, together with equipment, fellowships and technical assistance. This was a very successful component, though more careful preparation could have eliminated omissions such as a back-up generator for the computer, sufficient heavy duty printers and adequate security equipment. 14. The warehouses constructed for the Tanzania Elimu Supplies (TES), a parastatal established to distribute educational materials, were well situated to serve about three regions each; they were very large, but when visited by the Audit mission, the Morogoro warehouse was all but empty. The TES management complained that once it had been deprived of the monopoly in educational materials distribution, it had been left with the unprofitable rural areas, the money-making urban outlets having effectively been taken over by private concerns. Very little use was made of these excellent facilities at the time of the Audit, even though the Eighth Project included a book production and distribution component, which could well have benefitted from this previous investment. 15. All three projects provided finance for studies. The management study (Fourth Project) provided detailed recommendations which were largely accepted by the Government. There were three studies financed by the Fifth Project. The survey of training facilities for accountants and auditors led to the financing under the Sixth Project of the Dar es Salaam School of Accountancy (DSA), resulting in considerable qualitative improvements. The study of secondary facilities produced much useful information for planning development of the sector. The primary subsector review, based on a survey of 170 primary schools surveyed (or 1.7 percent of the national total), had design deficiencies which limited its usefulness, but did provide valuable data on physical facilities, staffing and curriculum. Details of studies to be financed by the Seventh Project were given in the Staff Appraisal Report (SAR), but neither the Completion nor the Audit mission was able to locate any reports. It is not clear whether the related technical assistance was used. Sustainability 16. Tanzania has passed through such a seriously adverse economic phase that sustainability has become and remains an issue of prime importance. The present status of project achievements ranges from the VMTP which has ceased to exist without lasting impact through the CECs where facilities are being used only partially for their original purpose, but where communities are active in maintaining the physical resources; through to the fully operational National Examinations Council, which appears lo be well established. 17. Some project-supported institutions appeared to be well maintained. The Bagamoyo rural health center is functioning well; the Vocational Training Centers (VTC) visited by the Audit mission were in reasonable physical shape and had received external assistance for further development. The rural primary classrooms (Seventh Project) were already in need of serious maintenance, as were the Nlational Examinations Council (NEC) buildings (Seventh Project). However, the Audit mis-,ion encountered one very remote community where the parents had contributed TSh 0.5 million to bring water to the school, which was their priority need. The laboratories and equipment provided for the upper secondary schools were well maintained, but the project had taken no steps to ensure an ongoing supply of fully qualified local teachers. 18. To summarize, some project institutions have largely or entirely ceased to serve their original functions but have in some cases been converted to other useful functions; other facil- ities remain unused. Several institutions are fully operational and efforts are being made, 20 though with strictly limited resources, to ensure their adequate maintenance. The PIU in MNE is now well established and continues to implement IDA-financed projects. Findings and Lessons 19. During a period of exceptional economic difficulty, IDA-financed projects were large, complex and dispersed. It would undoubtedly have been wiser to pay closer attention to simplicity of management and physical structures, possibly by limiting projects either on a geographical or a subsectoral basis. As it was, the three projects invested in almost every region of the country, appeared to get more and more complex, and the components were distributed over a dozen subsectors. 20. While IDA serves its member countries well by being reasonably optimistic, this must be tempered with realism. The identification mission for the Seventh Project in October 1978 thought that the identification following soon after the appraisal of the Sixth Project indicated "the Bank's confidence in Tanzania's ability to implement education projects smoothly." At the time, disbursements under the Fourth Project were at 62 percent of appraisal estimates, and under the Fifth Project, at 31 percent. This scarcely indicates smooth implementation. 21. The most important lessons learned from the projects under review are: (a) In countries where infrastructure is not well developed, simplicity of design and ease of management are essential. These are best achieved by minimizing fragmentation. (b) Preparation should be well advanced at appraisal and components insufficiently prepared should be eliminated. This applies particularly to project manage- ment, especially where other donor agencies are involved. In such cases, technical assistance should be in place before credit signature. (c) User involvement in project design and implementation can help to avoid errors (such as flush toilets in areas with severe water restrictions, provision of waterpipes in sinks where there is no running water, selection of waterlogged sites) and should be more strongly emphasized. (d) Non-Governmental Organizations (NGO) sometimes possess personnel and infrastructure uniquely placed for efficient implementation. Preparation work should always include an assessment of relevant NGO capabilities. (e) Much more attention should be given to design of technical assistance components. In the Fourth and Seventh projects, 33 and 88 percent, respectively, of technical assistance, and 57 and 73 percent of fellowships, were used. (The '7th Project included neither technical assistance nor fellowships.) (f) Supervision missions should have time and expertise to provide detailed technical assistance as necessary, rather than general advice. 21 Table 1: Summary of Project Ratings Fourth Project Fifth Project Seventh Project Project Outcome Satisfactory Unsatisfactory Satisfactory Institutional Development Modest Nq,gligible Substantial Sustainability L kely Unlikely Likely,  23 1. Introduction 1.1 This Performance Audit Report (PAR) surveys the preparation, execution and results of a series of three education projects which were financed by IDA in Tanzania between 1972 and 1990, a period of I8 years. These were the Fourth, Fifth and Seventh Education Projects, and were part of a series of projects implemented between 1964 and the present, which has now reached the Eighth. The First (Credit 45-TA) expanded secondary education. The Second (Credit 149-TA) promoted diversification of secondary education and supported primary teacher training. The Third (Credit 232-TA) developed agricultural education. The Fourth (Credit 371-TA) was intended to continue support for secondary and teacher education, as well as vocational, health and rural community education. The Fifth (Credit 607-TA) gave further support to diversification and assisted training of managers for Ujamaa villages. The Sixth (Credit 861-TA) financed vocational, accountancy and management training and provided facilities for girls at technical schools.? The Seventh (Credit 1056-TA) developed primary education in disadvantaged areas as well as science and mathematics at high schools and educational services. The Eighth (Credit 2137-TA), under implementation at the time of the Audit, financed strengthening of sectoral planning and improvement in quality of education through curriculum development and maintenance of plant. Thus IDA has supported most aspects of the education sector in Tanzania." 1.2 This broad scope of sectoral lending and the changes in project profiles reflected the evolution of Bank education projects and the shifting accents in subsectoral lending: the initial period was clearly dominated by concerns over specific skill shortages-the so-called manpower requirements approach, which used seemingly precise estimates of future skill requirements as a basis for planning the expansion of specific segments of an education system-was still the major tool for the justification of projects. This general orientation was later (in the fourth and fifth projects) supplemented by specific components designed to assist the Government's policies in support of the Ujamaa movement which was purported to foster rural self-reliance and solidarity (a reorientation which the Bank appears to have underwritten somewhat precipitously and uncritically). After these policies lost their appeal and were eventually abandoned, education lending to Tanzania adopted the triple emphasis of primary education development, quality improvements and institutional strengthening followed in a number of low-income, low-enrollment countries, particularly in the Africa region. 1.3 The very harsh macroeconomic situation which persisted throughout the period covered by these projects provides the most important element in the background against which implementation took place. This, combined with the major changes in policy which 3. The Second, Third and Sixth Education Projects have been the subjects of previous PARs (OED Reports No. 2019,2615 and 10971 of 1978, 1979 and 1992 respectively). The First Project was implemented prior to the establishing of OED. 4. One Peer Reviewer raised the question why the audits of the rather ancient Fourth and Fifth Education Projects were not organized more along the line of an Impact Study. The answer is that the three projects under review were substituted at rather short notice for projects in another African country which experienced logistical difficulties (travel restrictions). However, the point is well taken: a sample of the "middie-period* projects (say, Education III, IV and V) would probably constitute an interesting case for an impact evaluation, provided adequate data are available. 24 occurred, especially in relation to the Fifth Project, had a very serious adverse effect on the achievement of objectives. Other background factors having a su ;tantial influence on implementation were the rapidly changing staffing, particularly on the IDA side; and the apparent urge to lend where, even though the need for investment was enormous, the capacity to absorb investment was limited. The quantitative achievements were substantial, but qualitative attainments much less. 1.4 In the three projects under review, IDA financed primary education, lower secondary diversification, upper secondary science and mathematics teaching, teacher training, both in- service and preservice, vocational, health and community education, village management training, sectoral management and a very wide range of studies. If the Sixth Project is also considered, then accounting, technical and management training must be added. While these investments may reflect immediate needs as perceived by the Government at the time, one is hard pressed to find evidence of a longer-term strategy arising from a sound knowledge of the sector. In contrast, by the time of the Audit in the mid-1990s, a wide range of studies of the Tanzanian education sector had become available to guide the Bank in elaborating a sectoral project pipeline.' Historical Perspective 1.5 Tanzania is a large country with a population (1994) of around 28 million, where agriculture accounts for 59 percent of Gross Domestic Product. From Independence in 1960, Tanganyika (Tanzania from 1963) adopted a strongly socialist philosophy, emphasizing self- reliance and the improvement of living standards in the rural areas where some 90 percent of the people lived. Apart from certain coastal and mountain regions, the bulk of the people lived in scattered homesteads rather than in villages, making the provision of basic services such as education, health, potable water and extension services both difficult and expensive. The foundation of the rural transformation policy was the promotion of planned village communities where productive farming would be practiced. This was the "Ujamaa" policy of villagization of hitherto scattered communities, for whom the various facilities intended to improve living standards could be reasonably provided. Several components in the projects under Audit were designed to assist in the implementation of this policy. 1.6 Very large numbers of people moved their homes into Ujamaa villages. In some cases there was great enthusiasm and considerable agricultural activity. In many cases there was a lack of adequate leadership at all levels and considerable confusion, leading to the eventual abandonment of the policy. The lack of success of this fundamental policy accounts for the wide changes in Government policies which undermined the achievement of some project objectives. 1.7 Government's strategy of Universal Primary Education was a further fundamental influence on project design. This egalitarian objective influenced the distribution of the limited resources available for the education sector. It was combined with (a) limiting output 5. During the second half of 1994, the Region also undertook a portfolio review of education projects implemented by its major Borrowers, including Tanzania. There was agreement with the major conclusions of this PAR. 25 of the secondary subsector to the supply of the manpower needs of the country, which were expected to be adequately provided by 1980. In fact, there were still substantial manpower shortages in certain fields at the time of the Audit; (b) provision of vocational training; and (c) programs of nonformal education, especially in rural areas. Project Objectives 1.8 The Fourth Project responded directly to the Government's strategy. It planned to assist the development of the primary sector by financing one in-service and two preservice teacher training colleges; to expand the secondary sector by providing three general secondary schools; to improve vocational training by constructing two vocational centers; and to develop nonformal education by building eight community education centers. It also expanded the health education system to double the capacity for training doctors, and included a study of the facilities for management training. 1.9 The Fifth Project embraced two highly innovative components. The first was a training program for technicians who were expected to provide management expertise in the new Ujamaa villages coming into being as a result of the Government's villagization policy. The second was a continuation of the diversification of teaching programs in the secondary schools by providing workshops and other practical facilities. In addition, there were studies on (a) the system of training for accountants and auditors; (b) the existing facilities in all secondary schools and how their utilization could be improved; and (c) the primary education system. 1.10 The Seventh Project had four major components. It set out to improve quality of primary education by providing 360 classrooms and other facilities, together with teaching materials, at primary schools, especially in disadvantaged areas; to expand and improve science and mathematics teaching in upper secondary schools and to improve quality of secondary teacher training; to provide expanded and better facilities for primary teacher training; and to support educational services, including examinations, distribution of teaching materials and educational research and evaluation. Implementation Plan 1.1 1 The three projects were expected to take five, six and six years respectively. The PIU was established in the MNE under the Second Project. The Fourth Project planned to expand and strengthen this unit with technical assistance from DANIDA. In the Fifth Project, this unit was to be responsible for the expansion of secondary schools and the studies (except for the accounting study which was to be implemented by the National Board of Accountants and Auditors, NBAA), while a unit, the Project Coordinating Unit (PCU), established in the Prime Minister's Office (PMO). would implement the VMTP component. Both the PIU and the PCU would receive substantial support from DANIDA and the Norwegian Agency for International Development (NORAD). In the Seventh Project, the PIU (MNE) would be responsible for all components except the primary school program, which would be administered by the PCU (PMO). Technical assistance would again be provided, notably from DANIDA. 26 Project Costs and Financing Plans 1.12 The Fourth Project was estimated to cost US$14.58 million to which the IDA credit contributed US$10.3 or 71 percent. The Fifth Project was expected to cost US$15 million with an IDA credit of US$11 million or 73 percent; and the Seventh Project was appraised at US$55.5 million, of which IDA was to contribute US$25 million (45 percent) and DANIDA US$20 million (36 percent), with 19 percent coming from the Government. 27 2. Project Implementation Management 2.1 The initial development of the PIU for the Fourth Project was slow since technical assistance arrived some months after effectiveness. Also the preparation of some items was incomplete at appraisal. Over the period covered by these projects, including the Sixth, there was a gradual reduction in reliance on technical assistance. During the Fifth Project, which was supported by no less than 19 technical assistants mainly from DANIDA, 300 man-months of fellowships were awarded by DANIDA to strengthen the PIU capacity; and under the Sixth Project 31 persons benefitted from fellowships. The DANIDA support continued under the Seventh Project, and at the time of the Audit, the PIU was a well-established unit.' 2.2 Management of the Fourth Project was further complicated by the number (originally 17) and geographical distribution of components (Mwanza, Tanga, Mtwara and Tukuyu represent the four corners of the country!). This pattern of widespread distribution continued under the Fifth Project. Not only were project-financed institutions dotted about all over the country, but also responsibility for implementation was dispersed among three units-the PIU in MNE; the PCU in the PMO; and the NBAA under the Ministry of Finance. The PIU and the PCU continued their responsibilities in the Seventh Project, which had a total of 12 subcomponents. It involved about 150 sites in most parts of the country including Zanzibar, making it once again extremely difficult to administer. 2.3 Delays in implementation occurred in the Fourth and Seventh projects. The Fourth Project never recovered from the slow start-up. The Closing Date was extended for 30 months after one project item, the three secondary schools, had been deleted because of cost escala- tion. The Fifth Project was closed on time, but 36 percent of the credit was cancelled. The Seventh Project experienced great difficulties in management largely due to the complexity of its design, the extremely adverse economic situation and lengthy Government procedures. The Closing Date was extended three times for a total of 48 months. In particular, the primary school construction component was completed only after an NGO, the Tanganyika Christian Refugee Service (TCRS), with the capacity to overcome the serious problems in implementa- tion current at the time, was able to expedite construction. Physical Implementation Civil Works 2.4 Despite the prevailing economic difficulties resulting in problems in procuring building materials, and the scatter of project institutions, the quantitative achievements were consid- erable. The construction method devised for the CECs-soil-cement bricks-(Fourth) proved 6. Given the distance in time, it was not possible for the consultant to discuss the project experience with immediate participants from bilateral agencies in Tanzania. However, given the excellent relations between OED and DANIDA, the possibility of a joint impact evaluation exercise (see FN4, p. 23) should be explored. 28 unsuitable. The PCR warned of the need for regular maintenance. and the Audit found repair work in progress at one CEC, materials being purchased with mo, y raised from sale of agri- cultural produce grown by the school. One of the CECs was sited on a seasonally water- logged area, an error which could have been avoided with local advice. The home economics rooms were provided with sinks with waterpipes, despite the total lack of running water, and flush toilets at Dodoma Secondary School (Seventh) were unusable due to severe water restrictions; staff houses were poorly finished. Construction fatults were evident at some Seventh Project sites-serious roof leaks at the NEC, and cracked walls in staff houses at Korogwe High School. Apart from these criticisms, the chief problem was one of maintenance. The DANIDA school maintenance program was providing for secondary school rehabilitation, but many primary schools and other project institutions were in urgent need of regular maintenance. Furniture and Equipment 2.5 The supply of furniture, vehicles, books and equipment for most project components was generally satisfactory. As far as possible, local material, local designs and easy repair were taken into account. In some cases equipment shortages under earlier projects were rectified in later projects, as for example the VTCs which had insufficient equipment under the Fourth project, a deficiency rectified by the Sixth. One of the problems was that equipment lists were prepared prior to the development of detailed curricula, creating difficulties in ensuring the procurement of suitable equipment. In other cases, greater care at preparation would have avoided omissions, such as the lack of a back-up generator and essential technical equipment at the National Examinations Council. Technical Assistance 2.6 Most of the technical support to the PIU was provided by non-project funds, mainly Nordic and DANIDA, with some Indian and Netherlands support. Technical assistance funded under the projects was used mainly for studies, most of which appear useful (Annex A gives a summary).' There were three cases of professional support (Annex B)--for the health component (Fourth), high school mathematics and science teachers, and the NEC (both Seventh). Fellowships were provided (Annex C) to support the health component (Fourth), and the educational management components-the TES, NEC, and the Coordinating Unit for Research and Education (CURE)-and Dar es Salaam Technical College (Seventh). In the Fifth Project, all fellowships were funded by DANIDA, the IDA project having made no allowance for this. 7. It should be realized that in many instances, due to the remoteness in time, no government officials familiar with particular project details could be found. Thus inevitably some of the conclusions are based on fragmentary and circumstantial evidence (see also FN 6). 29 Borrower Performance 2.7 The late arrival of the Technical Assistance (TA) team delayed implementation of the Fourth Project. Substantial TA continued throughout the whole period of implementation of the three projects, but some continuity of local staff was achieved and by the time of the Audit an effective PIU was in place. The split in responsibility between the Ministry of National Education (MNE) and PMO in the Fifth and Seventh projects caused administrative problems, and staff changes caused much delay in implementation and problems with accounting. At a higher level, changes in educational policy contributed to the poor achievement of project objectives, especially in the Fifth Project. Compliance with Credit Agreement covenants was on the whole satisfactory (Annex D). Bank Performance 2.8 Preparation and appraisal of the Fourth Project were somewhat telescoped, resulting in some components being inadequately prepared. The processing of the Fifth Project also proceeded more rapidly than usual, which may have contributed to development of a project of great complexity which achieved little. The Seventh Project was even more complex, and involved Tanzania in a project costing over US$55 million at a time when the macroeconomic situation was very precarious. 2.9 Regular supervision visits took place, except at the end of the Seventh Project when an interval of 23 months occurred without supervision; but missions were too short, too small and expected to deal with two, three or even four projects at the same time. The wide spread of project sites and travelling difficulties made regular on-site supervision impossible, though the mix of architects and educators was well balanced. The frequency of visits and the relatively good geographic coverage were facilitated by the presence of an architect and an educator on the staff of the Bank's Regional Mission in nearby Nairobi. These locally mounted supervi- sion missions (until 1985) were judged by the Borrower to be more satisfactory than from Washington, being closer at hand and assuring greater personnel continuity. By contrast IDA staff sent from headquarters changed frequently. The involvement of an NGO in the Seventh Project was a very positive step.' The Seventh Project PCR suggests that supervision mis- sions should have given more direct technical assistance, but the Audit fails to see how this could have been achieved within the staff constraints of very short missions expected to cover several projects with a wide geographic spread. 8. In the ideal case NGO participation means the continued presence of capable and dedicated staff with a thorough knowledge of local conditions in remote (and, almost by definition, disadvantaged) areas which are rarely reached by central government officials-a bargain for both Borrower and Bank.  31 3. Project Outcomes 3.1 The projects, particularly the Fifth and Seventh, were very complex in design and involved many institutions spread very xvidely, but ne\ertheless achieved many of their objec- tives. The Fourth Project set out to provide training facilities for adults and children in vil- lages, to train primary teachers, and to expand health, seconday and vocational training. All of these were to some extent achieved with the exception of the secondary schools. The Fifth Project was expected to improve inanagemnct of village communities, to make secondary education more practical and to finance studies. The achievements were very limited owing mainly to changes in policy, but the studies were successful. The Seventh Project was to improve and expand primary and upper secondary education: and to strengthen educational management. Again the scope was reduced, but much was still achieved. Innovative Components Community Education Centers (Fourth) 3.2 The Audit visited three CECs, all of which were functioning as primary schools, with some other facilities (police office, clinic and several administrative offices) attached. It had been intended that existing primary schools should move into the new facilities, but this had not happened, so that in some cases two primary schools existed adjacent to one another, a very wasteful use of resources. Adult education was restricted to a small number of literacy trainees. The workshops were derelict and unused and the few remaining tools locked away. The PCR indicated that the skills which had been taught were not usable in the villages but by the time of the Audit there was no skill training. Some teachers had recently been trained in agriculture and home economics but these skills appeared likely to be used only in the primary school. The result of the investment is a group of primary schools with much better facilities than the surrounding ones, but little or no adult education activity.' Village Management Technician Training Program (Fifth) 3.3 There is very little that the Audit can add to the findings of the PCR. Training was carried out and it is probable that some accounting skills acquired by trainees have been of value in national development. However, the 1981 change of policy on villagization resulted in the abandonment of the training program. The Audit was unable to trace anyone with knowledge of the success or otherwise of the VMTP. House construction targets for techni- cians (1,500) were clearly unrealistic and reliance on self-help was a failure. The PCR sums it up as follows: "much greater caution should have been exercised in supporting the VMTP program. Because of its complexity, implementation difficulties and social/political sensitivity, it would have been preferable to support simpler components which are likely to yield better results." The Audit entirely endorses this conclusion. 9. Five of the CECs were completed. Two were converted into secondary schools and one was not completed owing to lack of inance when the project was closed. 32 Diversified Secondary Schools (Fifth) 3.4 The successful introduction of practical subjects into secondary schools in Africa depends upon several factors, all of which are essential: (a) a school population which repre- sents a significant percentage of the age group, and of which a large proportion can expect neither higher education nor formal sector employment. In other words, many school leavers can expect to have to create their own jobs; (b) a well-prepared. practical curriculum on which the remaining factors can be based; (c) very careful training of teachers; (d) curriculum materials giving details as to how skills arc to be taught and learned: (e) provision of tools, equipment, workshops and practical materials to enable practical instruction to be given and closely related to the curriculum; (f) very close supervision of the program by an intensively trained and highly motivated inspectorate; and (g) a system of evaluation and certification designed specifically for this training. As far as the Audit could determine, none of these factors pertained in Tanzania during the 1970s, so the program had no chance of success. The only activities to have survived the intervening 20 years were the home economics, chiefly because there were trained teachers; and sign-writing. None of the workshops seen by the Audit were being used as workshops but either as stores or not at all. In most cases they were still in good physical condition and could have been used at least as classrooms, thus expanding school capacity. Other Components Medical Training (Fourth) 3.5 This was a successful component, due in great part to the compactness and robustness of the component, and an underlying well-defined need. The Rural Health Center at Bagamoyo is still in use and provides practical rural training for medical students, greatly increasing the relevance of their training. Vocational Training (Fourth and Sixth) 3.6 The VTC at Tanga provides postprimary training in important skill areas. Women's enrollment is disappointing except in sign-writing, tailoring and 50 percent of those enrolled in electrical installation. Employers are not involved in curriculum, but a survey of their needs was being conducted at the time of the Audit. The Morogoro Instructor Training Center, financed by the Sixth Project, is providing practical instructor training as planned. Primary Teacher Training (Fourth and Seventh) 3.7 The Colleges at Mtwara, Tukuyu and Zanzibar were still functioning effectively at the time of the Audit. The in-service center at Bagamoyo is now used for training in educational administration (Sixth Project). The original function has been taken over by Vikindu, where agricultural teachers are trained in-service. While training of education administrators is an important function, the change in orientation has resulted in a waste of facilities as the laboratories are unused. 33 Accountancy Training (Fifth and Sixth) 3.8 The study of accountancy training financed by the Fifth Project was in part responsible for the inclusion of the Dar es Salaam School of Accountancy (DSA) in the Sixth Project. The lower level results at DSA were greatly improved at the time of the Audit: from 14 percent pass in 1981 to 89 percent pass in 1994, attributed to the better training of the staff. Higher-level training was still achieving poor pass rates (44 percent in 1994 at Professional Level II). At present the lack of autonomy identified in the Audit of the Sixth Project was not considered to be a major constraint, but if DSA is to be strengthened to enable it to cope with higher level accountancy training, this issue should be addressed. Primary Education (Fifth and Seventh) 3.9 The study of the primary system identified many of the problems in primary schools. The Seventh made a major effort to improve the situation in some remote parts of the country. The quantitative achievement was considerable, though this was achieved largely through the involvement of the TCRS in the last two years of the project. Construction was of variable quality-the Audit saw classroom floors already cracking up, and schools with almost no furniture. The most surprising feature was that in remote schools in Monduli District where water was many kilometers distant, no steps had been taken to provide water collection systems (assuming that there was not much flexibility in choosing school sites, given the existing population distribution). High School Science and Mathematics (Seventh) 3.10 Ihe science and mathematics component in high schools made an important impact on the upgrading and expansion of facilities. The kitchen at one school was not functioning, and dormitories were being phased out. One of these was being used for teacher accommodation, a good example of flexibility. Equipment was generally well received, but teachers at several schools complained that there were many other needs which had not been supplied, such as computers, calculators, video equipment and a range of physics equipment. Some equipment was supplied without instructions and could not be used. A seminar for manufacturers to train teachers in use of the equipment supplied would have been valuable. One of the most serious omissions was the complete failure to provide a plan, as required by the Credit Agreement, for the development of Tanzanian science and mathematics teachers. The input of 87.5 staff-years of expatriate teachers provided only temporary relief. Educational Managenet (Seventh) 3.1 1 The assistance to NEC was a successful component. The physical facilities were greatly expanded, though construction on a marsh resulted in serious cracks in the walls; fellowships and technical assistance were very helpful; the equipment was appropriate, though items omitted included a standby generator to keep the computer going when power break- downs occurred; a disk safe; heavy-duty printers and word processing facilities. Tanzania Elimu Supplies was provided with warehouses and transportation facilities throughout the country. These were very little used, despite the fact that the Eighth Project had a book production and distribution component. The liberalization of book distribution had resulted in 34 private investors concentrating on profitable urban centers, leaving unprofitable rural outlets to TES. and this in turn had resulted in serious financial problems. A range of studies were to be carried out as detailed in the SAR, and some of these were done, but with finance other than the project. The technical assistance was not used. 35 4. Findings, Lessons and Issues Overview 4.1 It is important to realize that this series of projects financed by IDA was implemented during a period of exceptional economic difficulty in Tanzania. Projects were designed with fairly low counterpart contributions from Government. All were affected by considerable delays in implementation, higher than expected inflation, and consequent elimination of components. Excessive optimism on the part of appraisal missions, willingness of IDA to finance highly controversial and innovative components without adequate pilot experience to determine their chances of succeeding on a larger scale, major policy changes affecting some components, and an urge to lend without taking adequate account of the Borrower's capacity to absorb capital funding or to finance ongoing recurrent needs, have limited the impact of these projects. Nevertheless, there were undeniable achievements: technical assistance and fellowships were on the whole successful, and some of the investments, while not being used as originally envisaged, are nevertheless contributing to the development of the country. Findings in Relation to Categories of Inputs Civil Works 4.2 A fundamental need for an educational institution is an adequate water supply; it is surprising that nothing was done about the lack of water at the Monduli primary schools. Selection of a waterlogged area could have been avoided (Mlowa Barabarani CEC). Provision of flush toilets (Dodoma) and piped water systems (CECs) where there was no piped water were misinvestments. In all these instances, local knowledge would have helped to avoid errors.'o Lack of adequate maintenance funding has seriously compromised sustainability of many institutions. Equipment and Furniture 4.3 Much of the furniture provided under the projects was still in use nearly twenty years later which indicates that it was strongly constructed. Curriculum analysis should precede the preparation of equipment lists, and actual equipment selection should elicit users' views. Technical Assistance 4.4 Technical assistance funded by the projects was limited since most of it came from bilateral donors. Studies undertaken by project financed technical assistance contributed to the knowledge of the sector and can be regarded as a success. Fellowships are a key element of many projects and contribute to sustainability; this underlines the importance of a clearly 10. Elaborating on this remark, the Region observed that the involvement of beneficiaries in project formulation is a key factor in a project's success. However, in fairness to the designers of the three projects, it should be recognized that at the time of their preparation, the issue of "project ownership" had not yet assumed the importance in Bank thinking it now has. 36 planned fellowship program. For example, the Fifth Project included no fellowships. These were provided in parallel by DANIDA but whether by prior arrangement is unclear. Lessons Drawn from Components Community Education Centers 4.5 This component was insufficiently prepared resulting in several errors in several cases: site selection was changed; existing primary schools and the adjacent CEC were not coordinated; adult education programs did not correspond to the perceived needs of the communities. The result is that some facilities, such as the workshops and practical equipment, are unused. Much closer consultation with community leaders through a detailed needs assessment would have resulted in a program conforming more closely to real local needs. At the time of the Audit mission the case for a coordinated approach to adult education was evident. Village Management Technician Training 4.6 The PCR emphasizes "the need to exert great caution in the formulation of projects which involve sweeping social reforms." The Government's subsequent change of policy rendered successful achievement of objectives impossible. The SAR recognized the technical difficulties but felt that technical assistance and careful evaluation would be sufficient to minimize these. In the event a political aboutface meant the collapse of the program and loss of the investment. A more careful assessment of the institutional and political risks may well have resulted in IDA reconsidering this component. Diversified Secondary Schools 4.7 The lack of support mechanisms for the teaching of practical subjects led to a low level of achievement. While all the factors mentioned in Para. 3.4 above are essential, the most crucial is the availability of skilled and highly motivated teachers, who were totally lacking, despite the SAR's assurance that there was an "adequate supply." The Audit regretted to find that so little use was being made of the well constructed workshops which could easily have been converted into classrooms to provide an expanded capacity. Medical Training 4.8 This was a comparatively easy component to implement as it was in only two sites and served a well defined need. Simplicity of design was an essential element. Vocational Training 4.9 Employers need to be closely involved with technical training to ensure relevance. This applies even more with the training of technical teachers. 37 Primary Education 4.10 The expansion of this sector since Independence has been a truly remarkable achievement. IDA has contributed by financing teacher training (Second, Fourth and Seventh Projects), school construction (Seventh), and curriculum development (Seventh and Eighth). The extensive in-service training program at the time of the Audit concentrated mainly on long-term specialist training. Although most teachers have basic teacher training, there is a need to implement upgrading programs to improve the quality of teaching, including short courses and distance education. Since these already exist, they only have to be emphasized more strongly. The important lesson derived from the primary school construction component is the benefit of cooperating with appropriate NGOs. Accountancy Training 4.11 This is one area which might be considered for inclusion in a future project since the IDA intervention, while successful, did not obviate the need for further improvement in higher level accountancy training: DSA hopes to be able to offer improved higher level training, and the CPA level training will need better qualified staff. High School Science and Mathematics 4.12 The most serious deficiency of this component was the lack of action taken to provide teachers after the departure of the expatriates. The need for this was made explicit in the Credit Agreement (Section 3.08b), but no action was taken. This problem could have been addressed at the design stage by inclusion of an appropriate subcomponent. Educational Management 4.13 Preparation of the NEC equipment lists should have involved the institution's staff more closely from the beginning, with close cooperation between project unit and NEC staff. If lists are prepared this way, beneficiaries cannot complain later about perceived or real defi- ciencies. The TES facilities are currently almost unused and there is an urgent need to reincorporate them into the system, or to find some alternative uses for them. Issues Avoid Extreme Dispersion 4.14 Where implementation caipcities are weak, it is unwise to undertake a component with extreme geographic dispersion. A sizeable number of sites can still be considered provided that they are located in a reasonably compact way. 38 Simplify Implementation Structures 4.15 The existence of three implementation agencies in the Fifth Project compounded an already complicated situation. Prioritize 4.16 The Bank Group cannot be all things to all people. It is apparent that IDA operations in Tanzania over the last twenty years have not been sufficiently selective. While every aspect of human resource development has its merits, it is vital to decide which are the most essential and then concentrate on them. Be Realistic 4.17 Overoptimism at appraisal leads to ineffective identification and management of development risks. In the three projects examined, a more realistic view of the CEC, VMTP and diversification components would have helped avoid wasteful expenditure. Emphasize Flexibility 4.18 In one school, the dormitories had been converted for use as staff housing. The diversified education workshops, however, were idle although they would have been suitable as general classrooms. Both in design and in actual use, flexibility is all-important. Examine Possibilities of Cooperation with NGOs 4.19 An NGO with firmly established implementation capacity within a region may be able to assist greatly in achievement of project objectives. Some NGOs have highly motivated and experienced personnel. The final beneficiaries, the Government and IDA have a great deal to gain from cooperative arrangements. Avoid "Aboveism" 4.20 Every effort should be made to consult the beneficLaries. This may be time-consuming at the outset but will often result in a much more satisfactory design and greater ownership among beneficiaries. Concentrate on Qualit' of Project Design and Emphasize Continuity 4.21 Components not filly prepared should be excluded at appraisal. Continuity of Bank staff supervision throughout the period of implementation pays rich dividends. If staff respon- sible for supervision are different from those who designed the project, appropriate arrangements for orderly transfer of implementation support responsibilities should be ensured. Rapid turnover of Borrower staff is also risky and needs judicious managements. 39 Take an Overview of Each Component at Appraisal 4.22 Project design should focus on priority issues and appraisal should ensure that the "big picture" has been taken into account prior to the review of detailed implementation plans. Paragraph 3.4 outlines the factors necessary for a successful diversification program. The Fifth Project addressed only one of the essential issues (item e). Similarly the high school science teaching component (Seventh Project) did not tackle the problem of long-term provi- sion of teachers, apart from an (ignored) mention in the Credit Agreement. A crucial consideration is institutional continuity aft:-r implementation. In considering the long-term recurrent cost implications, a realistic projection of fiscal constraints is needed.  41 Annex A Studies Appraisal Completion Fourth Education Project Management Training Two staff-years of specialist services in the Management training study achieved identification of management training needs improvement in the system. and preparation of a national plan for the development of management training. Fifth Education Project Accountancy Training Two specialists in curriculum design for 9.6 staff-years were used. Resulted in accountants and management training, each inclusion of DSA in 6th project. for three years; formulation of a plan to harmonize and standardize accountancy training. One specialist in development of instructional materials for one year. One specialist in training management for one year. Secondary School Facilities One general educator and one architect Six staff-years used. Covered most specialized in educational facilities, each for secondary schools and primary TTCs. two years. Primarv Education Subsector Review One general educator specialized in primary Study completed but staff-years used not education for two years. recorded. Seventh Education Project Preinvestment Studies, Project Monitoring and Evaluation Six staff-years of consultant services to carry Fme of the studies were carried out without out studies on (provisional): use of project finance. Technical assistance was not used. a. effects of project primary component; Done. PCR described as useful. b. primary education effects on efficiency of Done. farm production; c. tracer study on post Form IV; Done. d. efficiency of learning science, maths and Study carried out by Bank. practical subjects; Annex A 42 e. secondary school mapping; Information available. f. influence of productive activities in Study carried out by Bank. secondary schools on learning attainment; g. low population area primary school Not done. profiles; h. manpower requirement survey; Not done. i. monitoring and evaluation of institutions Done periodically. financed by this and previous projects. 43 Annex B Technical Assistance (excluding studies and project management) Appraisal Completion Fourth Education Project Medical Training 35 staff-years of university professional staff. 11.5 staff-years used. Fifth Education Project Nothing. The Nordic group provided TA for VMTP and secondary school construction. Seventh Education Project Secondary Education 100 staff-years of expatriate graduate 87.5 staff-years used. voluntary teachers of mathematics, physics and chemistry. NEC 12 staff-years of technical assistance 2.5 staff-years used. specialists in systems analysis, examination research and item development, data processing, computer programming and maintenance.  45 Annex C Fellowships Fourth Education Project 35 staff-years of external fellowships for 20 staff-years used in 12 fields. prospective members of the Faculty of Medicine. Fifth Education Project Nothing. 25 staff-years in civil engineering, building construction, quantity surveying and architecture provided by DANIDA. Seventh Education Project TES 10 staff-years of overseas fellowships for 2.75 staff-years used. TES staff to gain specialized training in procurement, stock control and transport management. NEC 32 staff-years of local and overseas 27.75 staff-years used by 23 persons. fellowships in systems analysis, examination research and item development, data processing, computer programming and maintenance, and statistics. CURE 36 staff-years in local and overseas 38.25 staff-years used. fellowships for sectoral personnel sponsored by CURE who would contribute to the generation or use of research. DSM TECH Seven staff-years for college staff. Six staff-years used.  47 Annex D Credit Agreement Covenants Fourth Education Project 3.09 CECs to be constructed by mobile This approach was started but communities units. proved too slow, so funds were employed. Cement-mud blocks unsuitable. 4.02 Appropriate operation and manage- CECs not functioning as intended; CNEs, ment of project institutions. medical and VTCs functioning effectively. 4.03 Establishment of a maintenance Many institutions have recently undergone a program. rehabilitation program funded by DANIDA. VTCs have some maintenance but funds insufficient. 4.04 Evaluation and plan for primary Training program exists. Now "0" level teacher training. entry. Fifth Education Project 3.07 b. Goods and services to be used 40 motorcycles commandeered by the police. for the project. This amount was cancelled from the credit. 4.01 Maintenance of records. Not done for VMTP due to lack of staff. 4.03 Maintenance of physical facilities. Not adequate (PCR). Audit found workshops not in use and VMTP houses untraceable. Covenants were too general and did not address vital needs. Seventh Education Project 3.08 b. Ten-year plan for training, Not met. posting and retention of science teachers. 3.09 Plan of action for studies to be done Many of these studies were carried out but using project funds, together with not using project funds. supporting information and materials.   IMAGING Report No: 14745 Type: PPAR