Ghana - Second Education Sector Adjustment Credit Project

 Second education sector adjustment credit Report No: ; Type: Report/Evaluation Memorandum ; Country: Ghana; Region: Africa; Sector: Education Adjustment; Major Sector: Education; ProjectID: P000896 Ghana: Second Education Sector Adjustment Credit (Credit 2140-GH) The Ghana Second Education Adjustment project, supported by Credit 2140-GH for US$53.2 million equivalent, was approved in FY90. The Credit was fully disbursed and closed on December 31, 1994 after a short extension. The Implementation Completion Report (ICR) prepared by the Africa Regional Office, provides a clear and comprehensive account of the implementation of the project. The Borrower's full report on the implementation and achievements of the project is annexed to the ICR. The project's objectives were to help the Government (a) complete the restructuring of the school system to a 12-year cycle, (b) make the curriculum of senior secondary education simpler and more practical, (c) consolidate the basic education reforms so that primary and junior secondary school leavers acquire the cognitive skills needed to take advantage of the education offered at higher levels, and (d) ensure the financial sustainability of the new system. To help fulfill its objectives, the project financed hardware (civil works, vehicles, and equipment), software (technical assistance and teacher training), and operating expenses. Despite implementation problems, the project fulfilled its main objectives. A new senior secondary system was put in place, measures to improve the teaching/learning process were implemented, large numbers of unqualified teachers were trained or phased out, curricula and textbooks were redesigned, and large amounts of instructional materials and equipment were provided. Steps were taken to reduce the Government's share of recurrent costs in education by limiting the number of non-teaching civil servants working in the sector, introducing textbook revolving funds, and eliminating food subsidies in senior secondary schools. These efforts were relatively successful, although university budgets proved harder than expected to reform. Attempts were made to improve the effectiveness of educational planning and management and to prioritize the public investment program in education. Notably, a beneficiary assessment was conducted in a sample of districts to assess the acceptance of changes in the sector. Pedagogical improvements were less satisfactory, and learning outcomes at all levels of education, as measured by standardized tests and examinations, continued to be very poor. Mostly, this seems to have been due to continuing poor teacher performance and attendance as well as ineffective supervision. Both the Bank and the Government may have underestimated the difficulties in reforming the school system, and neither adequately addressed the main problem, weak implementation capacity. The completion of the input-oriented objectives has been satisfactory, but the low student achievement creates a dilemma regarding the rating of project outcome. On balance, the Operations Evaluation Department (OED) agrees with all ratings in the ICR. OED rates project outcome as satisfactory because of the progress made in instituting systemic changes in the sector. Institutional development is rated as modest, and sustainability as likely, given the Government's continued commitment to support reform. The performance of the Bank is rated as satisfactory. An important factor contributing to project outcome was the close involvement of the task manager, who was resident in Ghana. The project shows that large-scale reforms require the establishment of intermediate targets and phased implementation. The presence of a task manager in the field may substantially improve the likelihood that a project will fulfill its objectives. The ICR is satisfactory. An audit is planned. The audit mission will specifically research the issue of learning outcomes in light of project investments.