Tanzania - Education Planning and Rehabilitation Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No.: 18137 IMPLEMENTATION COMPLETION REPORT T'ANZANIA EDUCATION PLANNING AND REHABILITATION PROJECT (CRE1DIT 2137-TA) JUJNE 30, 1998 Human Development Group 1 Eastern and Southern Africa Africa Region 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 At the time of Appraisal (February 1989) TSh 193 = US$1.00 TSh 1 = US$.0052 At the time of Project Completion (April 1998) TSh 600 = US$1.00 TSh 1 = US$.0017 WEIGHTS AND MEASURES Metric System FISCAL YEAR OF BORROWER July 1 - June 30 ACADEMIC YEAR January - December ABBREVIATIONS AND ACRONYMS BMU - Book Management Unit CURE - Coordinating Unit for Research and Evaluation ESAMI - Eastern and Southern Africa Management Institute DETF - District Education Trust Fund HRDP - Human Resource Development Project ICD - Institute of Curriculum Development ICR - Implementation Completion Report MANTEP - Management Training for Education Personnel MOEC - Ministry of Education and Culture NETF - National Education Trust Fund NORAD - Norwegian Agency for Development Cooperation PMO/LG - Prime Minister's Office - Department of Local Government SAR - Staff Appraisal Report SDR - Special Drawing Rights SIDA - Swedish International Development Authority SMARTs - School Maintenance and Rehabilitation Teams TIE - Tanzania Institute of Education TRC - Teachers Resource Center UDSM - University of Dar es Salaam UPE - Universal Primary Education Vice President Callisto E. Madavo Country Director James W. Adams Sector Manager Ruth Kagia Task Team Leader Donald Hamilton  FOR OFFICIAL USE ONLY Table of Contents PREFACE.......................................................................................................................................................................... PART 1: EVALUATION SUMMARY.............................................................................................................................- Project Objectives ........................................................i Achievement of Project Objectives .........................................................i Implementation Record and Major Factors Affecting the Project ........................................................ ii Project Sustainability ............................................... . ii Bank Performance ............................................... ii Borrower Performance ............................................... iii Assessment of Outcome ............................................... iii Future Operation ............................................... iii Key Lessons Learned ............................................... iii PART II: PROJECT IMPLEMENTATION ASSESSMENT ...............................................I Project Objectives ........................I Achievement of Project Objectives ................................................2 Implementation Record and Major Factors Affecting the Project ................................................6 Project Sustainability ...............................................7 Bank Performance ...............................................8 Borrower Performance ................................................9 Assessment of Outcome ................................................9 Future Operation ........................9 Key Lessons Learned ............................................... 10 PART III: STATISTICAL ANNEXES ............................................... 11 Table la: Summary of Assessments ............................................... 11 Table I b: Strengthening of Institutional Capacity .... .................... 12 Table I c: Improving the Quality of Education ................................... 13 Table Id: Strengthening of Mobilization and Effective Utilization of Non-Government Resources and Support for Education .................................. 14 Table 2: Related IDA Credits .................................. 15 Table 3: Project Timetable .................................. 17 Table 4: Credit Disbursements: Cumulative Estimated and Actual (US$million) ................................................ 18 Table 5: Key Indicators for Project Implementation ......................................................... 19 Table 6: Key Indicators for Future Project Operations ......................................................... 22 Table 7: Studies Included in Project ......................................................... 25 Table 8A: Project Cost ......................................................... 28 Table 8B: Project Financing (US$M) ......................................................... 29 Table 9: Status of Legal Covenants ..........................................................30 Table 10: Bank Resources: Staff Inputs ......................................................... 35 Table I1: Bank Resources: Missions ......................................................... 36 APPENDICES Appendix A Mission Aide Memoire Appendix B Borrower's Comments on the ICR Appendix C Borrower's Evaluation Appendix D Co-financier's (NORAD's,) Comments on the ICR This document has a restricted distribultion 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.  IMPLEMENTATION COMPLETION REPORT TANZANIA EDUCATION PLANNING AND REHABILITATION PROJECT (CR. 2137-TA) PREFACE This is the Implementation Completion Report (ICR) for the Education Planning and Rehabilitation Project in Tanzania, for which Credit 2137-TA in the amount of SDR 29.0 million (US$38.3 million equivalent at the 1990 prevailing exchange rate) was approved on June 8, 1990, and made effective on November 12, 1990. The credit was closed on December 31, 1997, following a 12-month extension. SDR 5.3 million was canceled following the mid-term review. The credit is fully disbursed, and the final disbursement took place in April, 1998. TIhe credit was supplemented by a US$8.0 million equivalent grant from the Norwegian Agency for Development Cooperation (NORAD) and parallel financing of US$12.0 million equivalent provided by the Swedish International Development Agency (SIDA). The ICR was prepared by Mr. Donald Hamilton, Human Development Group 1 of the Africa Region. It was reviewed by Ms. Ruth Kagia (Sector Manager), and Mr. James W. Adams (Country Director). The Borrower and co.-financiers provided comments that are included as appendices to the ICR. Preparation of this ICR was begun during a mission to Tanzania from March 19 to April 16, 1998. The mission consisted of Mr. George Hadjicostas (Civil Engineer, Consultant), Ms. Lavinia Gasperini (Education Specialist), Dr. Emmanuel Malangalila (Operations Officer, Resident Mission), Mr. Barney I. S. Laseko (Project Management Specialist, Resident Mission), and Mr. Donald Hamilton (Mission Leader). The Borrower contributed to the preparation of this ICR by rendering valuable professional assistance to the ICR Mission and the Borrower's Evaluation. This report is based on the mission's findings following their extensive discussions with the beneficiaries, the donors and the principals of the various institutions involved. The team met with the Permanent Secretaries in the Prime Minister's Office and Ministry of Education and Culture, and was assisted by the Project Coordinators and staff in those two ministries. In addition, the ICR team relied on historical project documents and correspondence in the project files, and reviewed the implementation an,d monitoring assessments and audit reports submitted for this project.  Evaluation Summary Page i of iii PART I: EVALUATION SUMMARY Introduction 1. The eighth IDA education project in Tanzania, the Education Planning and Rehabilitation Project (EPRP), consisted of a credit in the amount of SDR 29.0 million (US$38.3 million equivalent). The credit was closed on December 31, 1997, following a 12-month extension. Supplemental funds were provided by the Norwegian Agency for Development Cooperation (US$8.0 million equivalent) and the Swedish International Development Agency (US$12.0 million equivalent). Project Objectives * Strengthening institutional capacity for planning and implementing appropriate and effective education policies and programs (actual cost: US$6.2 million). * Improving the quality of primary and secondary education (actual cost: US$23.3 million). * Strengthening the mobilization and effective utilization of non-governmental resources and support for education (actual cost: US$25.8 million). Achievement of Project Objectives 2. While the quality and efficiency of activities were uneven, the project was partially successful. Many targets were reached, but the project did not systematically measure impact. (i) Strengthening Sector Planning and Management. The objectives of this component were largely achieved and the outcome oni the whole was satisfactory. (a) Strengthening of Education Management (partly successful). The target number of educational managers, school heads, and librarians were trained. The physical facilities of the management training agency were upgraded; but its curriculum is limited, and the quality of its training has suffered from staff losses. (b) MOEC Information Base (partly successful). The statistical information systems of Ministry of Education and Culture (MOEC) were significantly improved, including the publication of the bulletin "Basic Education Statistics in Tanzania (BEST) Data Analysis." However, data on primary education and examination results are still inadequate, and the capacity for linking educational expenditures with outcomes has not been developed. (c) Education Research and Studies largely successful). A number of research studies financed by the project provided the basis for key policy decisions taken at the time-for example, in piloting the Community Education Fund and privatizing the publication of textbooks. (ii) Improving Education Quality. The objectives of this component were achieved, except for the Science Teaching sub-component. However, given the achievements of the other sub-components the overall outcome is rated satisfactory. (a) Institute of Curriculum Development (largely successful as revised). This subcomponent was not fully implemented as originally designed because part of ICD's role was shifted to the private sector. Nevertheless, the revised activities in curriculum development and textbook review had a positive impact. (b) Science Teaching (mostly unsuccessful). In this subcomponent, Teacher Resource Centers (TRC) were built but the integrated science curriculum was never implemented. However, the MOEC may instead use the TRCs as additional resources for teacher training. (c) Textbooks (very  Evaluation Summary Page ii of iii successful as revised). The production and distribution of over one million secondary school textbooks helped increase the book-pupil ratio from 1:8 to 1:3. In addition, the project supported privatizing the production of textbooks. (d) Libraries (partly successful). The physical targets for the provision of library books were met. MOEC now needs to implement its plan for the development of libraries. (iii) Mobilizing Community Resources. The objectives of this component were partially achieved, but with difficulty and cost overruns. This component is evaluated as having a marginally satisfactory outcome. (a) Primary School Rehabilitation (partly successful). Under this program, communities were mobilized to help rehabilitate 798 schools, 48 more than planned. However, pilot schools built to illustrate low-maintenance construction and the school maintenance teams had limited effect. (b) Construction and Rehabilitation of Non-government Secondary Schools (mostly unsuccessful). Although this subcomponent had some positive effects, the original objectives were not met. A total of 311 grants were awarded, but the planned tasks at a number of schools are unlikely to be completed because of National Education Trust Fund's (NETF) overcommitment and slow construction. NETF assumed the management role intended for NGOs, so operational costs were higher than expected. Two Pilot Initiatives. In the mid- 1990s, the Government of Tanzania (GOT) requested that the project design be modified to include two pilot components: One matched community contributions for the development of primary schools, and the other funded secondary school scholarships for girls from poor households. The pilots have been sufficiently successful to form the basis of the new Human Resources Development Pilot Project (Cr. 2991-TA). Implementation Record and Major Factors Affecting the Project 3. Success in the implementation of the individual project activities was variable for several reasons. First, institutional capacity was too weak to handle some of the more innovative components, and coordination of the components and subcomponents across a variety of institutions proved to be unworkable. Second, sector policies were unclear and inconsistent. Third, some subcomponents were not well conceived or fully discussed before being included in the project. Fourth, inadequate financial management led to cost overruns. These problems were compounded by factors largely beyond Government's control, including an economic crisis in Tanzania that severely constrained GOT's ability to provide counterpart funds, frequent changes in the Bank's Task Managers, and changes in Bank procurement procedures. Project Sustainability 4. Although not all subcomponents can be maintained, the overall sustainability of the project objectives is rated likely. Capacity has been built throughout the sector, and certain key activities in each of the loosely related components are sustainable. Bank Performance 5. Bank performance was satisfactory during project identification and preparation, but performance at appraisal is rated unsatisfactory. Some appraisal decisions set the stage for future problems. Given the weak capacity in the sector at the time, the appraisal mission should have questioned the wisdom of including many difficult and innovative approaches in the same project across ministry boundaries. Overall Bank performance during supervision was satisfactory,  Evaluation Summary Page iii of iii though not always smooth. Some supervision missions did not recognize that disbursement delays had been caused by legitimate policy discussions or design flaws. In addition, education indicators were not adequately monitored. However, the mid-term review was effective in facilitating improved Bank performance in the later years of implementation. Borrower Performance 6. Borrower performance was uneven but satisfactory overall. Borrower performance during project preparation is rated as unsatisfactory. Unclear policies and strategies for some of the quality components led to delays ancl changes in policy. In addition, there was no consensus for some project activities, such as the science curriculum revision. The request to include the NETF component should have been accompanied by a clear vision of its role and how it would operate. During implementation, Borrower performance was satisfactory. The project implementation units coped well with the restructuring of the Bank, if not so well with the changes in procurement guidelines. Performance improved sharply after the mid-termn review, and most of the targets were eventually met. But management of project accounts was a major weakness and resulted in cost overruns. Assessment of Outcome 7. Despite its serious shortcomings, the outcome of the project was marginally satisfactory. The project's positive impact was an achievement, especially considering the overwhelming challenges of the sector and institutional weaknesses. In particular, the project strengthened the sector's human resources, laid a foundation for sector analysis and policy reform, provided books, and mobilized communities to rehabilitate schools. Studies financed by the project weire the basis for key policy decisions made cluring that period and set the stage for the subsequent pilot operations. Future Operation 8. The following actions would enhLance and sustain the effectiveness of this project: (a) NETF should re-orient its functions and study the possibility of channeling funds through District Education Trust Funds (DETF) and other NGOs; (b) the Bank and the Government should continue dialogue on the new poliicy for MANTEP, the development of libraries, and science teaching; and (c) the Bank and thie Government should periodically evaluate the effectiveness of the Community Education Fund (CEF) and Girls Secondary Education Support (GSES) activities piloted under the current project. Key Lessons Learned 9. The following are some of the lessons learned from this operation: * When the policy framework is unclear and institutional capacity is weak, an instrument such as a Learning and Innovation Loan (LIL) may be more appropriate than a traditional project. * Responsibilities and resources should be decentralized to local institutions only when clearly defined procedures for the use and management of the funds have been established. * Special project units outside the line functions of a ministry should be avoided. Responsibility for maintaining and rehabilitating schools should be kept as close to the school as possible, including directing funds to local levels to reduce costs and avoid inefficiencies.  Implementation Completion Report Page I PART II: PROJECT IMPLEMENTATION ASSESSMENT Introduction 1. IDA has been supporting the development of education and training in Tanzania since 1963. The eighth IDA education project in Tanzania, the Education Planning and Rehabilitation Project (EPRP), consisted of a credit in l:he amount of SDR 29.0 million (US$38.3 million equivalent). By the time of project appraisal in 1990, the previous seven education projects addressing various sector issues had utilized IDA assistance totaling US$70.2 million (see Table 2). In real terms, this total lending for all seven projects was only slightly more than tlhe amount approved for the Education Planning and Rehabilitation Project. 2. The three management units for the project were the Ministry of Education and Culture (MOEC), the Prime Minister's Office/Department of Local Government (PMO/LG), and the National Education Trust Fund (NETF). The credit was closed following a 12-month extension to allow for completion of the project's activities. SDR 5.3 million was canceled from the original credit following the mid-term review. The Disbursement Section has recorded that the amount to be repaid by the Government of Tanzaniia (GOT) against this credit is US$33.0 million. 3. The credit was supplemented by a grant of US$4.9 million equivalent from the Norwegian Agency for Development Cooperation (NORAD). That grant was subsequently increased to US$8.0 million after the Development Credit Agreement (DCA) was signed. In addition, the Swedish International Development Agency (SIDA) provided a grant of US$12.0 million equivalent in parallel financing. This was for providing textbooks to primary schools and for supporting the MOEC's efforts to privatize textbook publication. Project Objectives 4. This project was planned as the first phase of a multi-stage program that would be implemented at least through the year 2000. The program was designed to revitalize the Tanzanian education sector, one of several sectors that had been hurt by the economic crisis in the 1980s. The main objectives of the project were: (i) To strengthen institutional capacityfor planning and implementing appropriate and effective education policies andprograms (US$4.7 million, appraisal base cost estimate). This would be accomplished by training managers, improving the information base, and strengthening education research for policy development and sector studies. (ii) To improve the quality of education at the primary and secondary levels (US$23.8 million). This would be done by strengthening the capacity of the Institute of Curriculum Development (ICD) to produce textbooks and educational materials, improving the methods for teaching science, developing the capacity to provide and use textbooks effectively in schools, and upgrading libraries in primary and secondary schools, colleges, and the University of Dar es Salaam. (iii) To strengthen the mobilization and effective utilization of non-governmental resources and supportfor education (US$19.6 million). This would be done by marshaling  Implementation Completion Report Page 2 community involvement in the development of a school maintenance and rehabilitation strategy for primary schools (especially in deprived areas), and by creating the National Education Trust Fund to promote community participation in the establishment of secondary schools. 5. Modifications and additions made to the project reflected the difficulties encountered in implementing the project as designed. They also reflected the evolution of policy that resulted from extensive sector studies (some of which were financed by the project). Achievement of Project Objectives 6. While the quality and efficiency of activities were uneven, the project was partially successful. Many output indicator targets were reached, but the project did not track qualitative indicators or systematically measure impact. 7. The EPRP was an ambitious project designed to support the Government's long-termn efforts toward the revitalization, reform, and rehabilitation of the education system. However, it was seen as only a partial answer to the enormous challenges facing the sector at the time. To address the issues fully, the Government would have needed to adopt a broad-based approach including (a) developing a policy framework, sector strategy, and detailed plans for the implementation of a strategy; (b) building institutional capacity, including salary incentives for education sector staff; (c) reducing unit costs in key areas of the educational system; and (d) increasing resource allocations to the sector. 8. Because of institutional weaknesses and the scale of the challenges facing the Tanzanian education sector, it was impossible to design a single project that addressed all of these issues successfully. Nevertheless, the needs were urgent, so the project was designed as a compromise between doing too little to make an impact and attempting to do more than could be effectively implemented. There were two major risks associated with this compromise. The first was that capacity deficiencies would hamper project implementation. The second was that, in the absence of a clearly defined policy framework and implementation strategy, unanticipated policy changes would change the pace and direction of the reform. These risks materialized during project implementation and reduced the project's impact. The provisions for mitigating those risks, namely annual reviews and technical assistance to strengthen management capacity, were not fully utilized by the Project Coordinating Teams. In addition, the project did not systematically collect data on the educational impact of project inputs. Despite these weaknesses, most of the physical targets of the project were met. The specific achievements of each component are discussed below. (i) Strengthening Sector Planning and Management. The objectives of this component were largely achieved and the outcome on the whole was satisfactory. 9. Management Training This subcomponent was partly successful: managers and planners were trained, but the training institution's capabilities were not substantially improved. The target number of educational managers, school heads, and librarians from both the central and local levels were trained and have been assigned to various parts of the country. A core of educational planners and researchers from the MOEC and the University of Dar es Salaam (UDSM) were also trained. In addition, the physical facilities and equipment at the Management Training for Education Personnel agency (MANTEP) were upgraded (although at far higher costs than  Implementation Completion Report Page 3 planned). The upgrades increased capacity, improved the work environment, and jprovided the agency with opportunities for cost-recovery by renting the facilities to other agencies. However, the effectiveness of training provided by MANTEP appears to be limited, although it was not fully evaluated. MANTEP currently provides a two-year course for educational managers, but this curriculum does not fully satisfy the diverse needs of managers and school heads. MANTEP has not used the technical assistance prDvided in the project to upgrade training, and the quality of education and training has been uneven. A significant proportion of staff trained under the project has left the agency. 10. Information Base. This subcomlponent was also partly successful. The statistical information systems of MOEC were significantly improved. The annual statistical bulletin titled "Basic Education Statistics in Tanzania (BEST) Data Analysis" was improved and provides imore timely basic data on education. While this is a substantial improvement over the conditions prevailing at project appraisal, the task was not completed. Primary education data are still not available at the central level in a forn that would permit detailed policy analysis. The data on1 examination results have a limited scope, so they do not provide enough detail to be useful in identifying learning weaknesses. In addition, the capacity for linking data on educational expenditures with educational outcomes has not been developed. 11. Policy Research. This subcomponent was largely successful. A number of research studies financed by the project provided the basis for key policy decisions taken at the time--for example, in piloting the Community Eclucation Fund and privatizing the publication of textbooks. The research results were incorporated into important policy documents, such as the 1997 "Education and Training Policy." The project awarded research contracts on an individual, rather than institutional, basis. Institutional contracts would have contributed more to the development of institutional skills in such areas as budget resources management. There may have been difficulties in maintaining effective collaboration on research programs between tlhe MOEC Planning Unit and UDSM. The ministry needs to systematically incorporate the findings of UDSM research into policy making. (ii) Improving Education Quality. The objectives of this component were achieved, except for the Science Teaching sub-component. However, given the achievements of the other sub-components the overall outcome is rated satisfactory. 12. Institute of Curriculum Development (ICD). The activities of this subcomponent, as originally designed, were not fully implemented because part of ICD's role was shifted to the private sector. Nevertheless, the impact of the revised activities was very positive. The capacity for curriculum development and review by ICD, now renamed the Tanzania Institute of Education (TIE), was strengthened. In addition, TIE was prepared for its new role in reviewing commercially produced textbooks. TIE's building plans were scaled down to be consistent with the policy change that moved textbook publication from TIE to the private sector. 13. Science Teaching. The original objectives of this subcomponent were mostly unmet, although facilities built by the project may now be used for other purposes. Teacher Resource Centers (TRC) were built but not used as planned. The decision not to develop science equipment prototypes or implement the new curriculum, which the TRCs were going to support, led to some uncertainty about the role of the TRCs. The new curriculum, planned for integrated science instruction and for Forms I and II in mathematics, was suspended because  Implementation Completion Report Page 4 some teachers and parents feared that the changes would dilute the quality of education. The TRCs were to provide in-service training to teachers using the new methods. In addition, six of the seven principals who were trained to staff the TRCs have now been reassigned to other duties. The MOEC has prepared an alternate plan to use the TRCs as additional resources for teacher training institutions and schools in the areas where they are located. This plan has yet to be implemented, so its future impact is uncertain. 14. Textbooks. This subcomponent, as revised, was very successful. The implementation of the textbook production and distribution component was modified before the DCA was signed. As a result, SIDA and other donors became responsible for funding primary school textbooks, while IDA financed secondary school textbooks. The Book Management Unit (BMU), supported by the project and other donors, coordinated the production and distribution of over one million secondary school textbooks in math, unified science, social studies, and English and Kiswahili language studies. This helped increase the book-pupil ratio from 1:8 to 1:3. In addition, the project supported the process of transferring responsibility for the production of textbooks to the private sector. Textbooks procured under the new privatization policy are beginning to appear on the market (mathematics Forms I to IV are now available in the market, while six more publications have been sent to TIE for approval). 15. Libraries. The objectives of this subcomponent were largely achieved, but MOEC now needs an overall plan for the development of libraries to make the improvements sustainable. The physical targets for the provision of library books to primary and secondary schools, colleges, and UDSM were met. However, the selection of books distributed by central authorities did not always match the needs of the various schools. Staff in these institutions were also provided library management training at MANTEP. ('ii) Mobilizing Community Resources. The objectives of this component were partially achieved, but with difficulty and cost overruns. For reasons stated below, this component is evaluated as having a marginally satisfactory outcome. 16. Primary School Rehabilitation. This subcomponent was partly successful, but only in one of three areas. Communities were mobilized to help rehabilitate schools (with cost overruns), but the impact of activities to promote local school maintenance teams and to model a cost-effective construction design were minimal. Under the Office of the Prime Minister/Department of Local Government, about 798 schools (against the 750 planned in the project) were assisted by this subcomponent. Because of the popularity of the program, 48 more schools than planned were funded. Following a consultant's recommendation, the first phase of the component (1991-92) rebuilt schools rather than rehabilitating them, but this decision was later reversed. The project funded building materials, furniture, part of the labor costs, training for artisans, and site supervision, amounting to about US$13 million (15% higher than the estimated cost). This subcomponent motivated communities to participate in the rehabilitation and outfitting of their schools. Interestingly, some communities not directly assisted by the project are undertaking rehabilitation and maintenance activities on their own initiative. 17. The two other activities under this subcomponent were largely ineffective. Pilot schools built to illustrate low-maintenance construction were well executed, but the methods and materials proved to be too costly for widespread application. For example, the plaster and paint applied to the external walls has created the need for constant maintenance. The training of School Maintenance and Rehabilitation Teams (SMARTs) was completed as planned at a cost of  Implementation Completion Report Page 5 about US$1,000 each. However, an evaluation report on the rehabilitation component found SMARTs' input to be limited and very costly, especially when they had to work some distance away from their normal work place. These costs were particularly high, given that they did not have direct technical input to the construction work undertaken by the communities. 18. Non-government Secondary School Construction and Rehabilitation. Although this subcomponent had some positive effects, the original objectives were not met and many of the activities were not implemented cost-effectively. Under the subcomponent, cofinanced by NORAD, NETF was established as planned and functioned within MOEC. A total of 311 grants were awarded to help in the construction and rehabilitation of non-government secondary schools. However, the quality and scope of work performed by the communities that received grants were difficult to determine or audit, and it appears that the planned tasks at a number of schools will not be completed because of NETF overcommitment and slow construction. In addition, NORAD has commented that non-physical accomplishments related to quality improvement were not made the priority. 19. The original objectives of this subcomponent were not met for two main reasons. First, the objectives were changed after project approval. As originally designed, the project was supposed to channel funds to District Education Trust Funds (DETFs) or other NGOs to build 10 new schools and complete 50 others. Tlhe NETF would also fund materials, equipment, and in- service teacher training. These objectives were revised to allow NETF to provide grants to communities that wanted to upgrade physical facilities, along with the other tasks approved by the NETF. 20. Second, NETF's operating system was revised and remained unclear. There was no clear financial system for managing the funds awarded to the communities. In addition, NETF did not channel funds to DETFs or NGOs as orilginally planned, and instead NETF assumed the role of the DETFs. However, NETF lacked specialists to evaluate the applicants and to monitor the use of grants in the field, and the project did not include operational funds for NETF. As a result, the costs, especially for NETF travel to implementation sites, were far higher than normal for NCGOs. An estimated 18% of the grants was spent on overhead and administration. NORAD noted that these costs may have been higher because normal Government implementation arrangements were not used. The subcomponent also experienced difficulties in appointing non-government officials as board members of NETF. 21. Two Pilot Initiatives. GOT also added two pilot initiatives not in the original project design. These programs have been effective. Policy studies and discussions have raised doubts about the efficacy of a centralized delivery of educational services managed entirely by public institutions. The experiences of both PMIO/LG and NETF seem to support these doubts. To complicate matters, educational indicators continued to worsen during that period. In the mid- 1990s, GOT decided to try alternate melthods for helping rural communities and requested that the project design be modified and funds be reallocated to include two pilot components. 22. The first component consisted of a Community Education Fund (CEF). Funds collected by the community for educational purposes were matched on a 1: 1, 1.5: 1, or 2:1 ratio. These funds were used to finance school-based plans, prepared and implemented by the communities, for the development of primary education. The second component established Girls Seconda?y Education Support (GSES) to promote increased participation in secondary education of girls from poor households. These two components serve as the core of the recently launched Humian  Implementation Completion Report Page 6 Resources Development Pilot Project (HRDP) (Cr. 2991-TA), approved in October 1997 and made effective in February 1998, for US$20.1 million equivalent. Implementation Record and Major Factors Affecting the Project 23. Although project implementation was generally satisfactory, success :n the implementation of the various components was variable. Several factors that affected project implementation were related to the risks identified in the project documents. 24. Factors Subject to Government Control. First, institutional capacity was too weak to handle some of the more innovative components or to coordinate a project that involved various agencies in two ministries. The challenge was compounded by the decentralization of responsibilities. For example, the primary school rehabilitation component was charged with the devolution of civil works supervision and procurement responsibilities to the local level. District level staff were unaccustomed to, and untrained in, Bank procurement guidelines. While decentralization reduced the logistical problems of getting materials to school sites, it complicated PMO/LG's monitoring of procurement, delivery, and use of materials. The regions and districts also found it difficult to account for the funds because of their unfamiliarity with the Banlk's disbursement procedures. NETF was also working with completely new and untried procedures for helping communities and was constrained by their incomplete understanding of the financial and procurement requirements of NORAD and the Bank. 25. There were problems not only with the capacity of project management but with its structure. Coordination of the three loosely related components and thirteen subcomponents across a variety of institutions proved to be ineffective. In the absence of changes in the Government's administrative structure, the decision to have only one Coordination Unit for a project implemented by two separate ministries proved unworkable. As a result, this arrangement was changed mid-project, and three separate units were established. The key issue seems to have been that there was no central agency on the Government side with the authority to coordinate the various agencies involved in the project. In addition, the Government's use of complicated disbursement procedures, rather than a revolving fund for the project account, slowed the provision of counterpart funds to implementing agencies. 26. Another factor affecting implementation was that the policy framework was unclear, and there were some unexpected policy changes. For example, the absence of a clear and consistent policy framework delayed the delivery of textbooks, as well as civil works components. A protracted discussion about an appropriate policy for publishing textbooks contributed to this delay. The reversal of the policy on science instruction also delayed the construction of the TRCs. 27. In addition, some components were not well conceived or fully discussed prior to being included in the project. Inadequate project preparation adversely affected the primary school rehabilitation component. As noted above, a system for procurement of construction materials was not fully defined and suffered from trial and error during implementation. The decision to include the NETF component was made without adequate preparation or discussions with NORAD about the objectives and description of the component or the role of the Bank in project supervision. Such problems led to misunderstandings between the funding agencies and GOT, causing significant delays in project implementation. In addition, NORAD has noted that parties  Implementation Completion Report Page 7 at the NETF and community levels also were not made fully aware of their roles and the design of the project. 28. Factors Subject to Implementation Agency Control. Another issue is that of costs and financial management. The annual audit reports contain a detailed, and fairly critical, account of the manner by which PMO/LG and NE1F managed their funds. The cost of administering some of the components was high and far beyond appraisal estimates. For example, at project closing the PMO/LG Coordinator reported outstanding payments of about US$2.0 million for contracts entered with suppliers of building materials and for counterpart funds to match community contributions. The PMO/LG Project Unit also charged roughly US$1.15 million against the credit (50% of which was disbursed as local expenditures) for travel and subsistence to supervise work in schools that received grants; the initiaLl amount in the DCA was about US$200,000. When the local contribution is factored in, the administrative cost of the rehabilitation subcomponent was 18%. Based on NGO experience in Tanzania, a figure of less than 5% would have been more appropriate. The overcommitment of funds was partly the result of a weak project accounting system that did not provide current information on expenditures and commitments. 29. Factors Not Subject to Government Control. The above problems were compounded Iby an economic crisis and currency devaluation in Tanzania that severely constrained GOT's ability to provide counterpart funds. During the course of project implementation, the Tanzanian shilling was devalued annually. The exchange rate of Tanzanian shillings per U.S. dollar was 200 in 1990, 233 in 1991, 335 in 1992, 478 in :1993, 524 in 1994, 570 in 1995, 590 in 1996, and 610 in 1997. (When these rates are applied to the amounts disbursed in each respective year, the credit provided 15.0 billion TShs against an appraisal amount of 6.0 billion TShs.) Implementation also suffered from frequent changes in Task Managers, resulting from the reorganization of the Baink, and from changes in Bank procurement procedures. Project Sustainability 30. Although not all subcomponents can be maintained, the overall sustainability of the project is rated likely. Capacity has been built throughout the sector, and certain key activities in each component are sustainable. In addition, the two components piloted under this project show promise. Because the components were only loosely related, each one is examined separately. 31. Strengthening Sector Planning and Management. By building institutional capacity, the first component has made MOEC less reliant on foreign technical assistance. Perhaps the greatest achievement is that the MOEC Planning Unit has been strengthened to conduct and manage sector planning and research. The unit's potential is substantial, though its future is uncertain. The recent decision to assign staff from the Planning Unit to ad hoc task forces outside the normal institutional framework of the NIOEC may significantly reduce the effectiveness of the Unit. At MANTEP, operational costs are high, so its operations could become unsustainable as Government support for recurrent expenditures is reduced. However, the project allows MANTEP to gain some income from renting use of its improved facilities. 32. Improving Education Quality. T he project has helped the Government transfer responsibility for the technical production of books to the private sector. GOT decided to privatize textbook publication in 1991. 'rhe project has contributed by supporting overseas training, consulting services, and equipment that allowed the BMU to turn to the private sector.  Implementation Completion Report Page 8 The response from private publishing firms has been slow but positive. However, there is some concern that the limited market for books and publishers' lack of access to credit could prevent full implementation of the Government's policy. If successful, the policy would make books available at affordable prices over the medium to long term. 33. Mobilizing Community Resources. The primary school rehabilitation program was not sustainable as implemented during this project, but the system has been changed. The Community Education Fund is addressing the weaknesses of the original program by giving grants directly to schools. This pilot, now part of a new project, will be further evaluated as that project is implemented. The NETF component was not sustainable because schools were monitored from the central rather than district level. However, the Government recognizes the need to find effective ways to finance sustainable expansion of secondary schools and is addressing that issue in the context of the New Master Plan for Secondary Education currently being developed. Bank Performance 34. Bank performance was satisfactory during project identification and preparation. The team conducted a thorough analysis of issues in the sector and of options for addressing these issues. Bank staff and the Borrower consciously decided at the time to follow a risky but pragmatic approach because of the urgent needs of the sector. Overall performance at appraisal is rated unsatisfactory; some appraisal decisions set the stage for future problems. Given the weak capacity in the sector at the time, the appraisal mission should have questioned the wisdom of including many difficult and innovative approaches in the same project across ministry boundaries. It should also have been more open about the difficulties inherent in accepting the ill- defined NETF component, and taken steps to minimize future problems. 35. Overall Bank performance during supervision was satisfactory, though not always smooth. Supervision missions faced daunting implementation problems, particularly during the early stages of the project. Each of IDA's 10 supervision missions (employing a different Task Manager- every two missions) left behind extensive aide-memoires and schedules of follow-up activities to be carried out by the Project Implementation Units. These were useful, although the schedules seemed overly ambitious sometimes because of weak implementation capacity. This resulted in misunderstandings between the PIUs and the Bank. The supervision missions also concentrated on physical inputs and did not adequately monitor education indicators that were worsening during that period. The Government's contribution to the ICR states that the Bank's involvement and the sound technical assistance provided were instrumental to the success of project implementation. However, the large number of problems early in the project and the frequent change of Task Managers led to the perception by PMO/LG and NETF that some Task Managers were more concerned with finding fault than helping to carry out the project. NORAD notes that the frequent turnover may also have contributed to higher-than-expected costs for the NETF-implemented subcomponent. 36. The observation of the mission was that all Bank supervisions were worthwhile, each having contributed constructively to the completion of the project. Particularly during the early stages of the project, some supervision missions seemed to place too much emphasis on disbursements and did not recognize that the delays had been caused by legitimate policy discussions or design flaws. Given the Bank's role in this oversight, staff could have been more supportive of GOT while these changes were taking place. The Bank also should have provided  Implementation Completion Report Page 9 more support to the Borrower during the decentralization of procurement. However, the mid-term review was used very effectively to take stock of these issues. As a result, Bank performance improved markedly in the latter years of implementation. Borrower Performance 37. Borrower performance was uneven but satisfactory overall. During project preparation, however, Borrower performance is rated as unsatisfactory. While there was a clear vision of what was needed for the capacity-building component, the policies and strategies for some of the quality components were not as clear. This obscurity led to delays in decision making and changes in policy. In addition, there was no consensus for some project activities, such as implementation of the revised science curriculum. Serious problems with the subcomponents implemented by PMO/LG and NETF became evident during implementation. The request to include the NETF component should have been accompanied by a clear vision of its role and how it would operate. Changes in design reduced NETF's potential impact. 38. During implementation, Borrower performance was satisfactory. The PIUs coped well with the restructuring of the Bank, if not so well with the changes in procurement guidelines. There was a marked improvement after the mid-term review, and most of the targets were met, albeit much later than expected. Management of project accounts was a major weakness throughout the implementation period and resulted in cost overruns on two components. The Borrower should have taken the lead in addressing the issues that arose in trying to manage the project across two ministries, rather than waiting as long as it did to attempt a solution. The establishment of Special Implementation Units that were independent of the line functions of the Ministry neither increased the implementation capacity nor did it contribute to institutional capacity building. Assessment of Outcome 39. Despite its serious shortcomings, the outcome of the project was marginally satisfactory. Especially considering the overwhelming challenges of the sector and institutional weaknesses, the project's positive impact was an achievement. The institutional capacity for policy analysis and implementation was strengthened. Studies financed by the project were the basis for key policy decisions taken during that period. The project provided textbooks and library books to many schools and institutions, and it significantly increased the involvement of communities in school rehabilitation and maintenance. Some, though not all, of the activities are sustainable, and the pilot initiatives established under the project have set the stage for additional operations in Tanzania. Future Operation 40. The sector continues to be held back by the lack of a comprehensive vision for its future, and by the lack of a mechanism for coordinating the various ministries and agencies involved in education. The following actions will enhance and sustain the effectiveness of this project: * NETF should reorient its functions and study the possibility of channeling funds through DETFs, if appropriate, instead of continuing to operate as an NGO.  Implementation Completion Report Page 10 * The Bank and the Government should continue dialogue on the new policy for development of libraries and science teaching. * The Bank should continue working with the Government, SIDA, and the Association of Private Publishers on the privatization of textbook production. * MANTEP should develop a plan of action and work program to clarify its role. The Government should evaluate the effectiveness of MANTEP's training. The Bank should continue to discuss with Government the proposal to make MANTEP self-financing. * The Bank and the Government should periodically evaluate the effectiveness of the CEF and GSES activities piloted under the project. Key Lessons Learned 41. The following are some of the lessons learned from this operation: * The traditional project approach may not be appropriate to address certain sector issues when the policy framework is unclear and institutional capacity is weak. An instrument such as a Learning and Innovation Loan (LIL) would allow the Government to test innovations before implementing them on a large scale. * Responsibilities and resources should be decentralized to local agencies and institutions only when clearly defined procedures for the use and management of the funds have been established. These procedures should include incentives for local agencies to adhere to reporting and other accountability guidelines. * Responsibility for maintaining and rehabilitating schools should be kept as close to the school as possible, including directing funds to local levels to reduce costs and avoid inefficiencies. * Special project units outside the line functions of a ministry should be avoided. * If a project must be implemented by more than one ministry, normal government institutional arrangements for project implementation should be used. Difficulties in reaching agreement on effective institutional arrangements should be highlighted as serious project risks. * Innovations should not be added to projects unless there is adequate discussion of the concept. Projects should support changes such as curriculum reform only after building consensus among parents and teachers. * For cofinancing and parallel or concurrent financing of project components, the Government and the donors involved should fully discuss and reach a clear understanding on the component's design and the scope and nature of each party's responsibilities. * The Government and donors should emphasize the systematic collection of data on the educational impact of projects and evaluate training provided. * Wlhen institutional capacity for policy and planning is being developed, it should be done to serve the sector in the long term and be linked systematically to the key units of the ministry or agency involved. This would better ensure sustainability and minimize the need to set up ad hoc task groups with staff from these units.  Implementation Completion Report Page 11 PART ][I: STATISTICAL ANNEXES TANZANIA Education Planning and Rehabilitation Project Table lit: Summary of Assessments .________________ Substantial Partial Negligible Not Applicable A. Achievement of objectives Macro policies X Sector policies X Financial objectives X Institutional development X Physical objectives X Poverty reduction X Gender issues X Other social objectives X Environmental objectives X Public sector management X Private sector development X Other - NGO cooperation X Community participation X Decentralization X _________ _________ _______ _ Likely Unlikely Uncertain B. Project sustainability X X Highily l_______________________________ lsatisfactory Satisfactory Deficient C. Bank performance Identification X Preparation assistance X Appraisal X Supervision X Higlhly satisfactory Satisfactory Deficient D. Borrower performance Preparation X Implementation MOE,C PMO/LG NETF could have done better Covenant compliance X Operation - Supply of X textbooks E. Assessment of outcome X .  Implementation Completion Report Page 12 TANZANIA Education Planning and Rehabilitation Project Table lb: Strengthening of Institutional Capacity Substantial Partial Negligible Not Applicable A. Achievement of objectives X Macro policies X Sector policies X Financial objectives X Institutional development X Physical objectives X Poverty reduction X Gender issues X Other social objectives X Environmental objectives X Public sector management X Private sector development X Other - NGO cooperation X Community participation X Decentralization X I ________________________ _ = L Likely Unlikely Uncertain B. Project sustainability X Highly Satisfactory Unsatisfactory Highly ._____________________________ Satisfactory Unsatisfactory C. Assessment of outcome X  Implementation Completion Report Page 13 TANZANIA Education Planning and Rehabilitation Project Table lc: Iniproving the Quality of Education Substantial Partial Negligible Not Applicable A. Achievement of objectives X Macro policies X Sector policies X Financial objectives X Institutional development X Physical objectives X Poverty reduction X Gender issues X Other social objectives X Environmental objectives X Public sector management X Private sector development X Other - NGO cooperation X Community participation X Decentralization X Likely Unlikely Uncertain B. Project sustainability X Highly Satisfactory Unsatisfactory Highly Satisfactory Unasatisfactory C. Assessment of outcome X  Implementation Completion Report Page 14 TANZANIA Education Planning and Rehabilitation Project Table ld: Strengthening of Mobilization and Effective Utilization of Non-Government Resources and Support for Education Substantial Partial Negligible Not Applicable A. Achievement of objectives X Macro policies X Sector policies X Financial objectives X Institutional development X Physical objectives X Poverty reduction X Gender issues X Other social objectives X Environmental objectives X Public sector management X Private sector development X Other - NGO cooperation X Community participation X Decentralization X Likely Unlikely Uncertain B. Project sustainability X Highly Satisfactory Unsatisfactory Highly Satisfactory Unsatisfactory C. Assessment of outcome X  Implementation Completion Report Page 15 TANZANIA Education Planning and Rehabilitation Project (Cr. 2137 TA.) Table 2: Related IDA Credits Title/Cr. No./Amount Achievement/Purpose Date of Approval Status of Closing Dates Preceding operations SAR Actual 1. Education I Expansion of general, secondary education 12/10/63 12/31/67 Not found in data system C00450-TA $4.6 million 2. Education II Support for secondary school expansion; 4/29/69 12/31/73 12/31/76 C01490 - TA initiation of diversified curriculum in $5.0 million secondary schools targeted for self-reliance; expansion of teacher education 3. Education III Expansion of agricultural training for the 02/02/71 6/30/75 12/31/77 C02320 - TA Ministry of Agriculture $3.3 million 4. Education IV Expansion of secondary education-teacher 03/27/73 6/30/78 12/31/80 C03710 - TA training-provision of Community Education $10.3 million Centres in rural areas to provide vocational and non-formal education 5. Education V Provision of physical facilities, workshops 12/30/75 6/30/82 1983 C06070 - TA and equipment for S.E. diversified $11.0 million curriculum and training to support Village Management Technicians Program (VMT) to train accounts and audit personnel at the Ujamaa (African Socialism) Village  Implementation Completion Report Page 16 Table 2: Related IDA Credits Title/Cr. No/Amount Achievement/Purpose Date of Approval Status of Closing Dates Preceding operations SAR Actual 6. Education VI Provision of boarding facilities at vocational 12/12/78 6/30/85 12/31/88 C08610 - TA education centres; girls' dormitories in $12.0 million technical schools and support for a pre- investment study for the Institute of Curriculum Development (ICD, now renamed Tanzania Institute of Education, TIE) 7. Education VII Support for the expansion of primary and 07/29/80 9/30/86 12/31/90 C1 0560 - TA secondary education; provision of science $25.0 million equipment and books to secondary schools; expansion of teacher training; provision of warehouses for Tanzania Elimu suppliers; computerization of NECTA and the establishment of the Coordinating Unit for Research and Evaluation (CURE) in MOEC Ongoing Operations I1. Human Resource Providing matching grants to rehabilitate 10/17/97 12/31/05 Development Pilot schools, and supply textbooks, furniture and C29910-TA equipment to, primary schools; improve $20.1 million access to secondary schools for girls from poor families  Implementation Completion Report Page 17 TANZANIA Education Plainning & Rehabilitation Project Table 3: Project Timetable Steps in Project Cycle Date Planned Date Actual Identification (Executive Project Summary) January 1988 January 1988 Preparation June 1988 June 1988 Appraisal November 1988 February 1989 Negotiations January 1990 January 1990 Board presentation July 1989 November 1989 Signing June 12, 1990 June 18, 1990 Effectiveness Oct. 19, 1990 Nov. 12, 1990 Mid-term review (if applicable) September 1994 September 1994 Project Completion December 31, December 31, 1996 1997 Credit Closing April, 1997 April, 1998  Implementation Completion Report Page 18 TANZANIA Education Planning and Rehabilitation Project) Table 4: Credit Disbursements: Cumulative Estimated and Actual (US$million) Estimated Amount Actual Amount CY Semester Amount Cum. Cum. Amount Cum. Cum. Percent Percent of of Total Total 1990 1 2 0.0 0 1.49 1.49 4.71 1991 1 1.5 1.5 4 0.03 1.53 4.79 2 1.6 3.1 8 0.52 2.04 6.42 1992 1 4.1 7.2 19 2.85 4.90 15.39 2 4.1 11.3 30 1.70 6.60 20.75 1993 1 4.1 15.4 40 1.78 8.38 26.33 2 4.1 19.5 51 0.88 9.26 29.10 1994 1 3.8 23.3 61 0.37 9.63 30.26 2 3.8 27.1 71 1.63 11.26 35.39 1995 1 3.4 30.5 80 2.19 13.45 42.26 2 3.4 33.9 89 3.64 17.08 53.69 1996 1 2.2 36.1 94 2.63 19.72 61.97 2 2.2 38.3 100 4.36 24.07 75.66 1997 1 5.76 29.83 93.77 2 3.83 33.67 105.81 1998 1 0.18 33.84 106.37 2 Total 38.3 33.84  Implementation Completion Report Page 19 TANZANIA Education Planning and Rehabilitation Project Table 5: Key Indicators for Project Implementation DCA Description of the Indicator Target at Completed Schedule 2 Component Project Dec. 1997 Para Completion Ala Training Education Number of managers 10,000 10,500 Managers trained Alb Refurbishing MANTEP MANTEP rehabilitated 100% A2a Strengthening International and local 48 months local; 8 months local; Information Base technical assistance 24 months 22 months obtained international international Equipmient/software SDR 56,800 100% purchased Reports printed SDR 37,900 Printed A2b Strengthen NECTA Examination results Annual printing Printed printed by level, district, SDR 37,000 subject and sex Seminars for data SDR 189,394 61% of SDR collectors A3a Improvement in Establish Research 1 I Planning and Research Committee Capabilities Establish Educational I 1 Research Bureau at University of Dar es Salaam A3b Acquire Microcomputer Purchase computers, SDR 72,000 100% Equipment, Software, software, library etc. for Educational materials Research Bureau A4 Studies for Education Carry out 7 major 7 17 Strategy studies  Implementation Completion Report Page 20 Table 5: Key Indicators for Project Implementation DCA Description of the Indicator Target at Completed Schedule Component Project Dec. 1997 2 Completion A5 Pre-investment Study Carry out pre- SDR 380,000 100% investment studies BI Strengthening of Construct administration I Done Institute for Curriculum building Development B2 Science Equipment Equip SEDU 1 100% Provide fellowships and 120 staff months 100% training for staff of study tours Purchase equipment and SDR 379,000 Done vehicles B3 Improvement of Science Construct and equip 10 Construction Curriculum and Teacher Resource completed. Equipment Teaching Methodology Centres ordered. Low, pending implementation of a new policy defining the role of the Utilization Policy Centers. B4 Secondary School Reprint titles 24 Replaced Textbook Production Develop new 16 40 manuscripts Print, publish, and 521,000 530,000 distribute textbooks Orientation seminars for 5 5 teachers  Implementation Completion Report Page 21 Table 5: Key Indicators for Project Implementation DCA Description of the Indicator Target at Comp:leted Schedule Component Project Dec. 1997 2 Completion B5 School Libraries Upgradle and procure 100 10:2 books for primary school libraries Upgrade and procure 105 182 books fbr secondary school libraries Upgrade and procure 42 42 books for teacher training college libraries Upgrade and procure I I books for university library Train librarians 105 19S Train headmasters 100 77 Cla Comprehensive School Train S.MARTs in 105 300 298 Maintenance Strategy Districts Clb Formulate cost-effective Studies Completed. norms for primary A policy not yet school rehabilitation and formulated. maintenance C3 National Education Trust Establish NETF/DETFs Done Fund Provide grants to private 10 new, 50 311 grants provided secondary schools rehabilitated  Implementation Completion Report Page 22 TANZANIA Education Planning and Rehabilitation Project Table 6: Key Indicators for Future Project Operations Project Component Status & Issues Action to be taken Part A - Development of Institutional All components completely implemented. In general, there is need for follow-up action on all items Capacity for Planning and Some of these rather late in the project to evaluate impact and suggest remedies as necessary. Management of Educational period, so not yet tested. Programs (i) Management Training Completed in excess of planned numbers. No feed back or evaluation made on impact of training. It is advisable to make a sample evaluation to verify if training produced improvements in the work place of those trained. (ii) Refurbishing of MANTEP The refurbishing was completed late in the MANTEP to produce, annually, a full program and budget life of the project, at a much higher level and of planned and preventive maintenance so as to retain the cost than assumed in the SAR. value of the investment made. MANTEP to develop their plan of action and work program under its new role as a self-financing agency. (iii) MOEC Information Collection, Component completed. The department is Need to develop a work program to expand dissemination Analysis, and Dissemination now computerized. and make the information more relevant to future education sector planning. iv) Strengthening the Examination Component completed. Establish cooperative effort with the Education Statistics Council Office. Ensure that the results of the examinations provide informnation on quality of education and school performance.  Implementation Completion Report Page 23 Table 6: Key Indicators for Future Project Operations Project Component Status & Issues Action to be taken (v) Building Research Capacity - Planned studies completed. Work program BERE to promote themselves to carry out research for University of Dar es Salaam now in place. Library materials, vehicles and government, NGOs, and the private sector. software supplied in full. Part B - Qualitative Improvements All components completed. Follow-up to evaluate impart. (i) Institute of Curriculum Construction of new buildfinas nNnd Development/Tanzania Institute of refurbishment of currently used buildings. bookt productionei theroleandrreniritreso nsifblI. Fnds. Education book production is no longer their responsibility. Funds must be provided for TIE to provide in-service training to school teachers and to direct and monitor the activities of the Teachers' Research Centers. TIE to promote new teaching methodologies and curricula. TIE to produce a full program and budget of planned and preventive maintenance annually so as to retain the value of the investment made. (ii) Libraries Component All libraries provided as planned at the It is important to receive feedback on use of libraries and University of DSM, TTCs, selected its impact on education of students and teachers at the secondary schools, and selected pilot primary beneficiary institutions. schools. (iii) Primary School Textbooks The Book Management Unit (BMU) was (this component was funded by SIDA assisted to increase its capacity in producing There is need to formalze the functions of BMU under th and carried out as parallel financing) and distributing textbooks an-d reading books to the primary schools. It is necessary for the MOEC to work closely with TIE, BMU and the Association of Private Publishers to ensure  Implementation Completion Report Page 24 Table 6: Key Indicators for Future Project Operations Project Component Status & Issues Action to be taken that publication of relevant textbooks and reading books occurs regularly and becomes available in schools so as to retain the current pupil/book ratio of 3:1. (iv) Secondary School Textbooks Textbooks provided as planned. TIE to continue updating the science and other cufficulum needed for the enhanced secondary program. Part C - Mobilization of Community All components completed. As stated below. Resources (i) Rehabilitation of Primary School Most of the 750 schools, plus 48 additional Buildings And Supply of Furniture schools, have completed rehabilitation as PMO/LG to verify how many schools during the last phase and Equipment planned in four phases. Each phase utilized a are still not completed, and determine how remaining work different method of procurement and would be financed. PMO/LG must continue a public listic s, relations program to maintain the current decision of the communities to participate in the maintenance improvement and up-keep of their schools. The Human Resources Development Project now being implemented will help maintain this community intervention through the CEF. GOT should finance payments outstanding at the closing of the credit. (ii) Rehabilitation of Non-government NETF operated this component utilizing the NETF to carry out an inquiry to establish the number of Secondary Schools Supported by US$8.0 million provided as a grant by beneficiary schools not yet completed and to recommend NETF NORAD. 311 grants were awarded. how outstanding work will be completed.  Implementation Completion Report Page 25 TANZANIA Education Planning and Rehabilitation Project (Cr. 2137-TA) Table 7: Stiudies Included in Project Study Purpose as defined at Date of Impact of Study appraisal redefined Completion 1. Evaluation of the For use of ICD/TIE 1988 - Text book production and use of textbooks in the distribution policy. classroom and the use - Coordination of book of instruction time production (Dept. of Education, University of DSM) - Cutting down of extracurricular activities - celebrations, rallies, festivals etc. - Revision of some text books - Introduction of multi-textbook approach 2. Proposals for an For use by MOEC 1991 -Rationalization of Teacher appropriate teacher Training and deployment salary structure - Rationalization of budget (Galabawa, ceilings and personal Mutumbuka & emoluments Mukyanuzi) 3. Measures to reduce For use by MOEC 1997 Policy cost sharing: gaps between school - De-boarding of some fees paid by students in govemment schools government and private schools (Dept. of - Empowerment of school Planning, MOEC) committees in proposing realistic fees levels - Opening up of more private schools - Competition for quality of education offered by the school. 4. Responsibilities and For use by MOEC and 1993 -Decentralization of sc]nool roles of Education MANTER management Managers (Galabawa) - Empowerment of school committees /boards  Implementation Completion Report Page 26 Table 7: Studies Included in Project Study Purpose as defined at Date of Impact of Study appraisal redefined Completion 5. Establishment of For use by MOE of Zanzibar 1994 - Donor coordination in provision Zanzibar TRC (RV of the teacher in-service training Lange) - Cost cutting measures in Teacher In-service Training 6. Unit cost of For MOEC 1995 - Policy on cost sharing education and the - Demand Financing (CEF) willingness and caaiyo* prnst - Empowerment of school capacity of parents to Comtesr Bad share cost (Mukyannzi & Omari) - Rationalization of fees charged 7. Criteria that districts For MOEC, PM/LG and 1994 - Identification of disadvantaged should use in locating NETF areas for targeted government and building new subsidy schools (Sumra) - Rationalization of establishment of Government day schools 8. Methods used in the For use of ICDME 1995 - Registration of Secondary Teaching of Science schools only if have laboratories (Leeds University) - Coordination of donor inputs for lab improvement and supply of science materials - Enhanced efforts in In-service training for science Teachers 9. Improvement of From VEC for MOEC 1995 - Faster processing of BEST and MIS-Statistics Section feedback of MOEC (MERIT) - Production of BEST Data analysis pamphlet - Subsequent improvement of desegregated data capture 10. Review of the ICD ICDME 1996 - Policy on Textbooks production and Five-year Business and distribution Plan (SAGRIC) - Identification of a critical path for curriculum improvement  Implementation Completion Report Page 27 Table 7: Studies Included in Project Study Purpose as defined at Date of Impact of Study appraisal redefined Completion I1. Strengthening For UDSM 1996 Expanded scope for research by Bureau of Education BERE Research (BERE) (SAMOFF) 12. Expansion of MOEC 1996 - Enrollment of private sector in Secondary Education in provision of Secondary education Tanzania - Will lead into refinement of (Mwenisolongale) Secondary Education Master Plan 13. Monitoring and MOEC 1996 - Identification of monitorable Evaluation of Public indicators Programs in Tanzania - Establishment of monitoring (Ugullum R.) system for education achievements 14. Pre-Study for NECTA 1996 - Piloting of and identification of mechanization of appropriate technology for data NECTA and MOEC capture Statistics section 15. Procurement MOEC 1997 - Decentralization of procurement Procedure for MOEC responsibilities and levels to lower organs (e.g CEF) - Systematization of procurement at center.  Implementation Completion Report Page 28 Tanzania Education Planning & Rehabilitation Project Table 8A: Project Cost Components Appraisal Estimate Latest Estimate (US$ mil) (US$ mil) Item Local Foreign Total Local Foreign Total costs costs costs costs 1. Strengthening of Sector Planning and Management (a) Strengthening of Education Management 1.3 1.2 2.5 1.0 1.2 2.2 (b) Development of MOEC Information Base 0.3 0.5 0.8 0.4 0.7 1.1 (c) Education Research and Studies 0.8 0.6 1.4 1.6 1.3 2.9 Subtotal: 2.4 2.3 4.7 3.0 3.2 6.2 2. Improvement of Education Quality (a) Strengthening of ICD 0.8 1.5 2.3 0.7 1.4 2.1 (b) Improvement of Science Teaching 1.0 3.4 4.4 1.0 3.0 4.0 (c) Strengthening of BMU 0.0 0.3 0.3 - 0.1 0.1 (d) Provision of Primary Textbooks 2.2 9.5 11.7 2.2 9.8 12.0 (e) Provision of Secondary Textbooks 0.6 1.5 2.1 0.6 1.6 2.2 (f) Upgrading of School Libraries 0.4 2.6 3.0 0.4 2.5 2.9 Subtotal: 5.0 18.8 23.8 4.9 18.4 23.3 3. Mobilization of Community Resources (a) Rehab/Maintenance of Primary Schools 9.3 6.3 15.6 13.35 4.45 17.8 (b) *NETF Support for Secondary Schools 1.8 2.2 4.0 6.0 2.0 8.0 Subtotal: 11.1 8.5 19.6 19.35 6.45 25.8 4. Total Baseline cost 18.5 29.6 48.1 27.25 28.05 55.3 Physical Contingencies 1.8 2.7 4.5 0.9 1.4 2.3 Price Contingencies 10.1 4.8 14.9 3.7 1.7 5.4 Total Project Costs/l 30.4 37.1 67.5 31.85 31.15 63.0 * Latest estimated Total is greater than the allocation as per appraisal because of the increase of the NORAD grant to NETF from 4M to 8M USD. Includes duties and taxes estimated at US$3.9 million equivalent.  Implementation Completion Report Page 29 TANZANIA Education Planning and Rehabilitation Project (Cr. 2137-TA) Table 8B: 'Project Financing (US$M) Appraisal Estimate Actual Source Local Foreign Total Local Foreign Total costs costs costs costs IDA 15.8 22.5 38.3 18.53 15.31 33.841 NORAD 2.0 2.9 4.9 3.25 4.75 8.0 SIDA 0.7 11.3 12.0 N/A N/A 12.0 GOT 5.5 0.4 5.9 N/A N/A 11.3 2 Communities 6.4 0.0 6.4 3.0 0.0 3.0 TOTAL 28.1 39.4 67.5 26.9 36.5 63.4 SDR 5.3 million (US$7.65 million equivalent) was canceled following the mid-term review. 2 Not verifiable.  Implementation Completion Report Page 30 TANZANLA Education Planning & Rehabilitation Project Table 9: Status of Legal Covenants DCA Description of Covenants Covenant Present Original Actual Comments Reference Class Status Date Date Article 3 Shall adopt improved 12 Complied January 1, January 1, Memorandum from Task Manager on Section timetables of primary and with 1993 1994 March 7,1995. Waived. 3.04 secondary schools. Article 3 Shall (a) continue to 11 Not January 1, June 30, Memorandum from Task Manager on Section implement measures to complied 1990 1994 March 7, 1995. Waived this covenant. 3.05 reduce the gap between fees with paid in government, and community secondary schools; (b) ensure that at least half of increase in revenue shall be retained by the government secondary schools concerned. Article 3 Shall furnish for review a 05 Complied June 30, The Government has revised upward Section proposal for revision of with 1991 teachers' salaries twice since the start 3.07 teacher salaries of the project.  lmplementation Completion Report Page 31 Table 9: Status of Legal Covenants DCA Description of Covenants Covenant Present Original Actual Comments Reference Class Status Date Date Article 3 Shall establish NETF and 05 Complied June 30, Completed after delay. Section appoint its Board, Secretariat with 1991 3.9 and Technical Unit. Article 4 Shall have the records and 01 Compliance Due 12/31 annually. Completed after Section accounts for each fiscal year after delay delay. Up-to-date to FY92, FY93, 4.01(b) audited by independent FY94, and FY95 in audits. Incomplete auditors. audits for FY96 were received from MOEC. Audits for FY97 were received before the due date. Schedule Evaluation of the use of 13 Complied December December Study completed. 4.6(bXi) textbooks and instructional with 31, 1990 31, 1995 time. Schedule Method for teaching science 13 Complied December December Study completed 4.6(bXii) and mathematics. with 31, 1990 31, 1995 Schedule Costs of education and 13 Compliance December June 30, Completed after delay. 4.6(bXiii) willingness and capacity to after delay 31, 1990 1992 share costs. l  Implementation Completion Report Page 32 Table 9: Status of Legal Covenants DCA Description of Covenants Covenant Present Original Actual Comments Reference Class(es) Status Date Date Schedule Budgetary implications of 13 Compliance December October 3, MOEC states that study was done for 4.6(b)(iv) various policies for financing after delay 31, 1990 1996 sector work (Teachers and Financing education. . of Education). Schedule Responsibilities and roles of 13 Compliance December April 4, 1996 Study completed. 4.6(b)(v) education sector managers in after delay 31, 1990 a decentralized system. Schedule Criteria that districts should 13 Compliance December Study completed 4.6(b)(vi) use in locating and building with delay 31, 1990 new schools. Schedule Pre-investment study. 13 Compliance December Study nearing completion. 4.6b(vii) with delay 31,1990 Schedule Shall host two seminars on 05 Compliance October 18, In compliance. 4.6(c) strategy for the education 1991 sector with donors involved in the sector. Shall furnish the recommendat Schedule 12 Complied December March 6, Completed after delay. 4.6(d) with 31, 1994 1996  Implementation Completion Report Page 33 Table 9: Status of Legal Covenants DCA Description of Covenants Covenant Present Original Actual Comments Reference Status Date Date Schedule Shall evaluate the experience 12 Compliance December December Study completed. 4.8(c) in the pilot schools and 31, 1993 31, 1995 complete revisions in the science syllabus incorporating the results of the evaluation. Schedule Shall obtain the reprint and 12 Not June 30, October 3, Waived per Government request on 4.9(b) adaptation rights to complied 1991 1996 April 22, 1993. appropriate textbooks in with science, English, and mathematics. Schedule Shall agree on adequate 12 Complied March 31, March 31, Due annually. Study Completed. 4.10(a) allocation of funds for with 1991 1992 textbook development, field testing, printing, distribution and teacher orientation. Schedule Shall gradually increase 11 Complied July 31, July 31, 1992 Due annually. TSh 332,363,000 was 4.10(b) annual budgetary allocation with 1991 allocated in FY92; TSh 436,507,000 in for the minimum primary FY93; TSh 825,000,000 in FY94; TSh textbook package. 1,025,000,000 in FY95.  Implementation Completion Report Page 34 Table 9: Status of Legal Covenants DCA Description of Covenants Covenant Present Original Actual Comments Reference Class Status Date Date Schedule Shall announce that 12 Compliance June 30, October 3, It was announced 12/30/96. 4.11 complementary marketing after delay 1991 1996 channels are allowed to open and operate to facilitate purchases of additional textbooks from private sources. Schedule Furnish list of 100 primary 03 Compliance December October 3, Completed after delay. 4.1 1(a)(i) schools who met the criteria with delay 31, 1990 1996 for 1 st yr. of rehab. work. Schedule Shall prepare and discuss a 03 Soon June 30, August 31, Consultant being recruited to assist 4.11 a(ii) comprehensive school 1991 1994 with revising and implementing maintenance policy/strategy, strategy providing for a gradual Development phase of school increase in recurrent maintenance strategy pilot project. allocations for school maintenance.  Implementation Completion Report Page 35 TANZANIA Education Planning and Rehabilitation Project (Cr. 2137-TA) Table 10: Bank Resources: Staff Inputs Planned Revised Actual State of Project Weeks US$ Weeks US$ Weeks US$ Cycle Preparation to N/A N/A N/A N/A 123.30 270.00 Appraisal Negotiations through N/A N/A N/A N/A 15.80 37.50 Board Approval Supervision 50.20 217.10 59.40 236.00 277.30 710.40 Completion 26.00 37.00 26.00 37.00 2.40 1.30 Total 76.20 254.10 85.40 273,00 418.80 1,019.20 N/A: Not Available.  Implementation Completion Report Page 36 TANZANIA Education Planning and Rehabilitation Project Table 11: Bank Resources: Missions Stage of Project MonthJ Number Days in Field Specialized Performance Types of Problems Year of Staff Skills Rating Persons Represented Appraisal Thru Board Preappraisal 02/89 1 10 (Feb. 7 - 17) Appraisal 05/89 3 18 (May 1-19) Negotiation 01/90 Board 05/90 Supervision 11/90 1 0 Education 1 Delays in completing Agreement between IDA and NORAD with respect to NETF. Textbook approval processes need to be established as soon as possible. Serious weakness in accountancy and disbursement process in MOEC. DSM needs to be re-located to ensure coordination . ______________ ______________ with rest of project.  Implementation Completion Report Page 37 Table 11: Bank Resources: Missions Stage of Project Month/ Number Days in Field Specialized Performance Types of Problems Year of Staff Skills Rating Persons Represented 03/91 1 12 Education 1 Delays in appointment of TA in accounts section of MOEC. Legal agreement with NORAD on co- financing NETF component not yet finalized. 09/91 1 (July 31 -Sept. 9) Education 1 The acceptance by the GTZ of a policy for private sector publication of textbooks. Potential difficulties in working relationship between MOEC and PMO/LG with the establishment of separate PIU for the latter. Slow pace of activities in the science curriculum program and School Equip. Dev. Unit. 10/92 4 20 (Oct. 3-23) Education 2 Proj. account in poor shape. MOEC Civil Engineering unlikely to be in a position to Finance/Mgmt. prepare documentation requesting Economics replenishment in a timely manner. NETF needs reshaping to be a true NGO. Government seems more interested in increasing external resources than in efficient implementation.  Implementation Completion Report Page 38 Table 11: Bank Resources: Missions Stage of Project Month/ Number Days in Field Specialized Performance Types of Problems Year of Staff Skills Rating Persons Represented 03/93 3 23 (March 1-23) Social Services 2 Project Coordinator is overloaded Finance/Mgmt. with non project work. Textbook Economics liberalization process slow, frustrating publishers. The mode of monitoring and paying for school rehabilitation needs to be worked out. Water supply for pilot schools not yet resolved. 11/93 4 Education 3 Unsatisfactory project accounts. Specialist Failure to appoint an experienced Social Services Project Accountant despite repeated ' Finance/Mgmt. reassurances to the Bank over a Economist three year period. Inadequate project accountability as reflected in qualified audit reports. Midterm Review 10/94 5 12 Proj. Implem. U Lack of attention to Bank Spec. procurement procedures. Education Inadequate coordination among Planner PlUs. NETF component slowed Fin/Accounting down by delayed response from Spec. NORAD on amendment to Grant Economist Agreement. Education Planner 06/95 2 11 Social Services U Delayed and unfavorable audit Specialist. report for PMO/LG component. Economist  Implementation Completion Report Page 39 Table 11: Bank Resources: Missions Stage of Project Month/ Number Days in Field Specialized Perfor Types of Problems Year of Staff Skills mance Persons Represented Rating 03/96 7 15 (Feb. 19 - Mar. Economist S Low disbursements because of devaluation of 6) Education Specialist the Shilling. Because of this, full disbursement Financial/Acct. Spec. of the Credit would be unlikely even with a Accountant project extension. Proj. Implem. Spec. Complicated GOT procedures make it difficult Architect for PIUs to obtain adequate counterpart funds _________ _ _______ _______________ ___________________ _______ on a tim ely basis. 09/96 3 Financial/Acet. Sec. S Inadeouate counteraprt finds. Qalifie-d altditc Proj. Implem. Spec. for PMO/LG component. 02/97 6 28 Financial Specialist S Economist Weak management of the National Education Social Sectors Spec. Trust Fund. Accountant Architect. 10/97 2 10 Economist S Counterpart funding still a problem. Accountant Accountability issues raised in audit of NETF component. Completion 4/98 5 31 (Mar. 19 - Apr. Education Planner S Cost overruns on the NETF and PMO/LG 16) Social Services components Specialist Education Specialist Civil Engineer Accounting Specialist  implementation Completion Report Appendix A TANZANIA Education Planning and Rehabilitation Project (Cr. 2137-TA) Implementation Completion Mission (March 19-April 16,1998) AIDE MEMOIRE Introduction 1. A mission consisting of Mr. George Hadjicostas (Civil Engineer, consultant), Ms. Lavinia Gasperini (Education Specialist), Dr. Emmanuel Malangalila, (Population and Human Resources Operations Officer, Resident Mission), Mr. Barney I. S. Laseko (Project Management Specialist, Resident Mission), and Mr. Donald Hamilton, (Mission Leader) initiated preparation Qf the Implementation Completion Report (ICR) for the Education, Planning and Rehabilitation Project (Cr. 2137-TA) (EPRP) in Tanzania from March 19 to April 16, 1998. This mission was done at the same time as the first supervision mission for the Human Resources Development Project. 2. The mission met with Dr. Ben Moses, Permanent Secretary Prime Minister's Office (PM/LG) (for the Local Government component), Mr. A. R. M. S. Rajabu, Permanent Secretary, Ministry of Education and Culture (MOEC), Directors and Heads of Institutions involved with the Project in both ministries and worked closely with Mr. David Bagenda (Project Coordinator, MOEC), Mr. Severin Ndunguru (Project Coordinator PM/LG), the Chairman of the Board of Trustees of the National Education Trusit Fund (NETF), Mr. Solemn Hamade, and Mr. Maurice Kasogela (Acting Executive Director, NETF. The mission also visited the National Examinations Council of Tanzania (NECTA), Tanzania Institute of Education (TIE), the Institute of Management Training for Education Personmel (MANTEP), and the Bureau of Education Research and Evaluation (BERE), and made field visits to Morogo, Iringa, and Mbeya Regions, during which they visited a selection of schools rehabilitated or equipped by the project. They met central and local government officials, and key stake holders including, school boards, teachers, students and parents, to discuss their implementation experiences and the imnpact of the EPRP in their areas. The mission also visited Zanzibar, where they met with Mr. Haroun Suleimnan, Principal Secretary, Ministry of Education and the Commissioner of Education. Meetings were also held in Dar es Salaam with NORAD (NETF component), and with SIDA who supported the Primary School Textbooks component outside the project. A summary of the main findings of the mission were presented at a meeting of the donors to the education sector as a group. The Mission's Draft Aide Memoire containing their initial findings were discussed, on April 16,1998 at the Wrap-Up Meeting chaired by the Permanent Secretary, MOEC. 3. The Mission received the GOT Completion Report and had the opportunity to discuss with the Project Coordinators some of the comments made there-in on Bank's performance.  Appendix A 4. The Mission wishes to thank government officials, staff of educational institutions, communities and donor agencies and the Project Coordinators and their personnel for giving generously of their time to assist the mission. Background and Project Objectives 5. The EPRP was the Eighth Education Project financed by IDA in Tanzania. (Credit initially US$ 38.3 million was reduced to US$32.0 million after cancellation of some funds). It was an ambitious projecl: designed as the minimum package to address what the appraisal mission stated (in 1990) as the "enormous challenges" facing the sector at the time. It was thought that to address these problems, the government would have needed a broad based approach with several key facets including: (a) development of a policy framework, sector strategy and detailed plans'for implementation of the strategy, (b) institutional capacity building, including salary incentives for education sector staff, (c) unit cost reductions in kcey areas of the education system, and (d) increased resource allocations to the sector. 6. To be effective these various areas needed to be developed in a coordinated way, and it was clear that several years would be needed to achieve satisfactory results. The system was not ready to meet these challenges at the time because of the economic recession which had eroded the institutional capacity and physical infrastructure of the, education system. At the same time it was also evident that it would not have been appropriate to wait until an accepted strategic and institutional framework had been developed before making investments in the sector to address the urgent needs in primary and secondary education. 7. A decision was therefore made to adopt a compromise approach which would: (a) strengthen sector strategy and action plans for the short and medium term; (b) build capacity to develop and implement strategies efficiently; and (c) make selective investments in areas which needed urgent attention. 8. This was seen as the first phase of a "multi-stage" program that would be implemented through to the year 2000 and beyond. With this as a backdrop, the main objectives of the project were: (a) To strengthen institutional capacity to plan and implement appropriate and effective educational policies and programs through: (i) training of managers, (ii) imnprovements in the information base; (iii) strengthening education research for policy development; and (iv) preparation of policy and subsector studies in specific areas. 2  Appendix A (b) To improve the quality of education at the primary and secondary levels through: (i) strengthening the capacity of the Institute of Curriculum Development (ICD) to produce textbooks and educational materials; (ii) improving the methods for teaching of science; (iii) further developing the capacity to provide and use textbooks effectively in schools; and . (iv) upgrading libraries in primary and secondary schools, colleges and at the university of Dar-es-Salaam. (c) To strengthen the mobilization and effective utilization of non-governnment resources and support for education through: (i) community involvement in the 4evelopment of a school maintenance and rehabilitation strategy for primary schools especially in deprived areas; and (ii) creating the National Education Trust Fund (NETF) to promote establishment of secondary schools with community involvement. 9. These objectives were extended after the mid-term review to also include as a pretest: (a) the Community Education Fund (CEF) approach, through which community funds collected for educational purposes are matched on an 1:1 or 2:1 ratio, to finance school based plans for the development of primary education prepared and implemented by the communities; and (b) a fund for Girls Secondary Education Scholarships (GSES) to promote increased participation of girls in secondary schools. 10. These modifications and additions were a reflection of policy evolution influenced by extensive education sector studies (some financed under the project) and discussions during the period. These two components are the major components of the recently launched Human Resources Development Pilot Project (HRDP) Cr.- 2991-TA. 11. Given the conditions prevailing in the sector at the time, it was acknowledged that there were serious risks associated even with this compromise approach. The first risk was that capacity deficiencies in the sector would hamper project implementation. The second was that in the absence of a clearly defined policy framework and implementation strategy for the sector, unanticipated policy changes could emerge that would change the pace and direction of the reform. These risks appeared ir various forms during project implementation, adversely affecting achievement of project objectives. It is noted that the mitigating provisions designed in the SAR, namely technical assistance to strengthen management capacity, especially in the area of accounting, were not fully utilized by the Project Coordinating teams. Also, the consensus which was thought to have been developed during appraisal around some key issues turned out to be fragile. 3  Appendix A Implementation Experience and Results 12. This section evaluates achievement of project objectives, and reviews the implementation experience overall and for the various components. Inspite of various difficulties and delays especially at the inception of project implementation, the project was satisfactorily implemented and had a positive impact on the development of the sector. The institutional capacity for policy analysis and implementation was strengthened, and studies financed under the project were the basis for key policy decisions taken during that period. School quality was also improved through the provision of textbooks and library books, and significant gains were made in increasing the involvement of communities in school rehabilitation and maintenance. The pilot of the CEF and GSES were also very successful and led to the expansion of the pilot in the subsequent project. 13. Although project implementation was satisfactory on the whole, success in the implementation of the various comrLponents varied. Strengthening of Institutional Capacity to Plan and Implement Appropriate and Effective Educational Policies and Programrs. The objectives of this component were largely achieved. The target number of educational managers, school heads, and librarians and others from the central and local levels were trained as planned, and have been assigned to various parts of the country. The impact of these managers is certain to have positive effects on the education systemL The physical facilities and equipment at MANTEP have also been upgraded ( at a cost far in excess of what it was provided in the SAR)to increase capacity and improve the work environment, providing opportunities for diversification of training programs and income earning activities.' The statistical information systems of the Ministry of Education and NECTAR were significantly improved, with the annual publication of a statistical bulletin "Basic Education Statistics" (BEST) which includes data on basic education indicators and examinations. A core of educational planners and researchers from the MOEC and the University of Dar-Es-Salaam were trained as planned, and a number of research studies financed under the project fed into key policy documents such as the "Education and Training Strategy Paper" and provided the basis for key policy decisions taken at the time. 14. While this is a substantial improvement on the conditions prevailing at the time the project was appraised, there is still need for further strengthening of this area of the education sector. Primary education data is still not available at the central level in a form that would permit detailed policy analysis, and the data on examinations is not distributed in a form that would help schools identify leamning weaknesses, and has only limnited distribution. There was also limited success in developing data on expenditures on education and linking them with educational outcomes. The effectiveness of the training provided by MANTEP is ilso limited. The institution only provides a two year generic course for educational marnagers which does not completely satisfy the needs of managers and schools heads who work in very varied circumstances. This is particularly true of the emerging management i2eeds in the area of community involvement in provision of education. The quality of education provided is also uncertain given the weak training capacity of MANTEP. A significant proportion of staff trained under the project have left the institution and. MANTEP has not used the technical assistance 4  Appendix A provided in the project to upgrade training. The cost of refurbishing MANTEP, as well as its operational costs seem to be high. There is a danger that as the decision to reduce government support for recurrent expenditures is implemented, MANTEP's operations will become unsustainable without increased management efficiency. 15. There is a risk that the sustainability of the planning and research capacity would be somewhat weakened now that the university is not directly linked to the MOEC but in a diferent Ministry. The institutional interest on the part of BERE in researching policy issues on education considered priority by the MOEC might become diluted. This partly explains the practice under the project of awarding research contracts on an individual rather than institutional basis. Institutional contracts would have afforded the opportunity to develop skills in the management of resources and highly skilled staff in the production of quality studies. Also, there may be difficulties in maintaining effective collaboration on research programs between the two agencies. There has also been a recent decision to set-up ad hoc task forces withstaff assigned from the Planning Unit, outside the normal institutional framework of the MOEC. This could substantially reduce the effectiveness of the Unit in carrying out its main functions. 16. Quality Improvement of Primary and Secondary Education Strengthening of the ICD/Tanzania Institute of Education (TIE) was achieved but not as originally designed. The buildings were scaled down to be consistent with the policy change which moved textbooks preparation from the TIE to the private sector. The Teacher Resource Centers were also built, but the decision not to develop science equipment prototypes, for which the TRCs were going to provide support, led to some uncertainty on how they should be used. Six of the seven Principles of the Teacher Training Institutes who were trained in the use of these centers have now been re-assigned to other duties. The decision to introduce a new integrated science curriculum for forms I and 2 and mathematics was suspended, because it was feared by some teachers and parents that it would lower the quality of education. This further increased doubts about the role of the TRCs where in- service training would have been provided to teachers on the new methods. To address the situation the MOEC undertook to prepare an altemative plan for use of the centers as supplementary resources for Teacher Training Institutions to which they were attached, and schools in the catchement areas where they are located. This plan is yet to be implemented. The TRCs are currently being used for variety of activities as determined by the TTCs to which they are associated. The TRC in Zanzibar was substantially increased in size (with govemment funds) and integrated into a complex of new buildings to form the nucleus of an Institute of Education of Zanzibar. 17. The implementation of the Textbook Production and Distribution component was also modified prior to the signing of the Development Credit Agreement, so that SIDA and other donors would be responsible for primary school textbooks, while IDA would provide secondary school textbooks. The Book Management Unit (BMU) which was supported by the project as well as other donors such as SIDA, coordinated the production and distribution of over one million copies of secondary school textbooks in Mafths, English, Unified Science, Social Studies and Kiswahili which had been prepared by the ICD when it was responsible for preparation of textbooks. This helped to reduce the book:pupil ratio to 1:2 from 1:8.  Appertx7u A 18. The GOT decided to privatize textbooks publishing as planned in 1991, and since then there has been a gradual process of developing an institutional framework that would permit full implementation of the new policy. The project's contribution to this process which has been supported by other donors such as SIDA, has been through support to the BMU for overseas training, consulting services, and equipment to help them transfer responsibility for the technical production of books to the private sector. The response from the private publishing firms seems to have been positive but slow, and textbooks procured under the new privatization policy are beginning to appear on the market. (Maththematics Form I to IV are now available in the market, while six publications, mostly Reference books, have been sent to TIE for approval. However appears to be continued to be latent opposition to the privatization move, and it is not clear how much this would affect implementation of government's privatization policy. 19. The physical targets for the provision of library books to primary and secondary schools, collegesand the university were met. Staff in these institutions were also trained at MANTEP in the management ol libraries. The selection of books was done by staff at the center, and in some cases the titles did not always match the requests made by the various schools. The chances of sustainability of this component would be improved by implementation of a new library policy being developed by the MOEC which would develop school libraries as an integrated system. 20. Strengthening the Mobilization of Non-government Resources for Education Developing School Maintenance Strategy for Primary Schools PMO/LG was responsible to implement the primary school rehabilitation program. The project provided funding for the supply of building materials, furniture, part of the labor costs, training of artisans and site supervision amounting to about US$13.0 million (15% more than the estimated cost of US$ 11 Mill) for the rehabilitation and provision of toilets, additional facilities such as small stores and rmning water where possible.to about 798 schools against the 750 planned in the Project. ( At project closing 31.12.1998 the PMO/LG coordinator reported outstanding payments of over US$ 1.2 million for contracts entered with suplliers of building materials and allocations to Communities as counterpart funds to their respective contributions. The reason for the cost overrun was on the one hand due to the poor accounting system which recorded payments but not commitments, and also because the PIU had allocated fumds to 48 more schools than planned at appraisal. 21. The PMO/LG worked closely with the district education officers and local authorities in selecting schools in every region following the criteria set out for rehabilitation. The implementation of the project was undertaken in four phases, the first phase (1991-92) covered to 100 schools; phase II (1992-93) 226 schools; phase m (1993- 94) 223 schools; and phases IV anid V (1994-95) related to 249 schools (48 schools in excess of the project target). Phase one did not follow the policy of rehabilitating schools and instead additional classrooms, staff housing and toilets were constructed in 88 of the I00 selected school sites. This decision was taken as a result of a consultants survey report which recommended that schools should be rebuilt instead of rehabilitated. This practice was reversed in 1992 when the visitng mission found that there had been an error ofjudgement with regard to replacing schools. The technical supervision teams were established and they provided oversight of construction quality on school sites. Weak' 6  Appendix A accounting and monitoring systems led to an over comittment of funds in the rehabilitation component, which has caused cost-overruns on the project estimated at US$2 million. The pilot schools built to illustrate low maintenance buildings were well executed but appeared too costly for widespread use. 22. Supported to Community Financed Secondary Schools The NETF was established under the project as planned, and over 300 grants were awarded to help in the rehabilitation of secondary schools. However, it is not clear that the original objectives of this component were met. As originally designed, the project was to set up an NGO through which funds would be channeled in an impartial way to District Education Trust Funds (DETF) and similar organizations for the establishment of new secondary schools. This component was to be co-financed by NORAD. These funds were to be used to match community funds for the construction of 10 new schools, completion and equipping of 50 schools, school materials and equipment for rehabilitation, and inservice teacher training. This description was changed after project approval to provide grants to communities to upgrade physical facilities, improve education quality through provision of educational materials and equipment, and upgrading teacher skills, and to carry out any other tasks approved by the NETF. This change in objectives and the lack of clarity of how the NETF would operate led to serious problems during implementation. 23. There were difficulties in appointing non-government officials as board members of NETF as planned, there were no clear financial systems for managing the funds awarded to the communities, and instead of channeling funds to DETFs, NETF was duplicating the roles of the former, and in the process built up a high cost capacity to monitor the use of grants in the field. In addition, the project did not include operational funds for NETF, and when this was added during implementation the cost basis used was far higher than is normally used by NGOs, and led to the equivalent of 18% of the grants as overheads. The quality and scope of work performed by the communities which receive grants is difficult to determine or audit, and there is evidence that there are a number of schools where the planned tasks would not be completed because of NETF over-commitment, or slow construction by school administrators. The govemment is aware that NETF cannot continue to operate under these conditions, and one option being considered is for NETF to be self financing. The future role of NETF is being reviewed and a decision will be taken shortly. There is also a recognition of the need to find effective ways to financing expansion of secondary schools. This issue is being addressed in the context of the New Master Plan for Secondary Education currently being developed under the SDP. 24. Community Education Funds and Girls Secondary School Fellowships Following the mixed experiences with the implementation of the primary school rehabilitation and the NETF components, the govermment decided to try alternative methods for helping rural communities. The Project design was therefore modified to include a pilot component that would (i) provide funds to match community contributions for development of primary schools, based on an approved plan developed and implemented by communities, and (ii) establish a fund for financing scholarships for girls going to secondary schools. Implementation of these components started in 1996, and the experience was successful in providing matching grants to 135 schools and 733 7  Appendix A scholarships to girls. The experiences of this pilot were further developed and formed ilhe basis of the new Human Resources Development Project. Unfortunatly the PMO/LG is not involved in the pilot. This creates uncertainties as to whether they would be ready to take over the management of these programs when it is decided to implement them on a large scale. A table of Key Indicators for Future Project Operations is ahown as annex 1. Factors which Affected Implementation 25. The main factors which affected project implementation are also related to the risks identified in the project documents. The policy framework was unclear, and there were some unexpected policy changes. Institutional capacity was also too weak to handle some of the more innovative components and to coordinate a project which covered a multiplicity of agencies in two ministries. In addition, some components like the NETF were not fully thoughtout or prepared before they were included in the project. Inadequate project preparation also adversely affected the primary school rehabilitation component. A system for procurement of materials for construction was not fully defined and had to be addressed in an ad hoc manner of tial and error during implementation. Procurement of these materials was gradually decentralized over the four phases to the districts which were unprepared to use Bank procurement guidelines,. As a result, while this improved logistical problems in getting materials to school sites, there continued to be difficulties in getting the regions / districts to account for the funds, and for PMO/LG to monitor the procurement process, the deivery and use of materials. 26. The absence of a clear and ccnsistent policy framework on the textbooks component delayed support to the ICD, at the very inception of the project. The reversal of the policy on teaching of science also delayed construction and commissioning of the TRCs. 27. Project implementation was challenging at several levels. Coordination of the three loosely related components, and thirteen sub-components across a variety of institutions proved to be unworkable, especially as the Project Co-ordinator was also carrying out his normal duties as Director of Planning. The decision of having only one Coordination Unit for a project to be implemented by two separate ministries proved unworkable in the current structure of govermment administration. As a result, this arrangement was changed during implementation resulting in three separate units. This however posed other kinds of probleims. The key issue seems to have been that there was no central agency on the government side with the authority to coordinate all the various agencies involved in the project. For example there was no coordination in the provision of project inputs to schools. New or rehabilitated schools did not receive books or training for teachers and some of those which received books did not have adequate storage facilities. 28. The Project Units were also charged with using innovative implementation methods. The primary school rehabilitation component was trying out devolution of civil works supervision and procurement r esponsibilities to the local level using new Bank Guidelines. NETF was working with completely new and untried procedures for helping 8  Appendix A cormmunities, and with inadequate of understanding of the financial and procurement requirements of NORAD and the Bank. This led to serious delays and misunderstandings. NETF could not obtain the certificates of expenditure from recipients of grants which were required for replenishmnent of their (NETF) accounts. All of these problems led to misunderstandings among the funding agencies and government, and caused significant delays in project implementation. These problems were compounded by the economic crisis in Tanzania at the time which severely constrained provision of counterpart funds. The re-organization of the Bank and consequent frequent changes in Task Managers also creeated communication difficulties. Implementation Record 29. The project was initially expected to cost US$ 67.5 million (the IDA funding of all the previous seven projects amounted to US$ 67.1) with IDA financing US$ 38.3 million, NORAD US$ 4.9 million, SIDA US$ 12.0 million, and the GOT and communities US$ 12.3 million. NORAD's contribution was increased to US$ 8.0 million after the DCA was signed. The SIDA grant was disbursed outside the project. The distribution of the Credit was US$ 20.3 million (finally spent US$ 22.3 million) for civil works, materials and equipment, and US$ 17.0 million (finally spent 9.44 million) for educational materials. Over the period the dollar appreciated significantly making additional funds ( in Tanzania shillings) available to the project. An amount of SDR 5.3 million (US$ 7.0 million) was canceled in 1996 and 400,000 SDR and 300,000 SDR respectively were allocated for the CEF and GSES components respectively. A first re- allocation of funds between categories was made after the mid-term review. A final re- allocation was done on September,1997 and is shown in the Table below. The Credit was extended by twelve months with a new closing date of December 31, 1997, to allow for the completion of the ICD, the rehabilitation of schools, the disbursement of funds managed by NETF, and the improvement of information base components. 30. Bank Performance Bank performance was effective during project identification and preparation. The team conducted a thorough analysis of issues in the sector and options for addressing these issues, and decided on what at the time was considered a risky, but pragmatic approach because of the urgent needs of the sector. Had the project succeeded fully it would have prepared the sector to absorb the substantial resources needed to address some problems that are still current. Performance at appraisal was satisfactory, but some decisions were made which set the stage for future problems. The decision to support the buildings for ICD partly because it was thought to be responsible for textbooks development was questionable, given the climate of uncertainty about how books would be authored in the future. The discussion of textbooks in the project documents sends mixed messages. On the one hand supporting the relocation of ICD mainly because of its role in textbooks preparation and at the same time promoting private sector development for publishing. Also, the decision to include the NETF component without adequate preparation or discussions with NORAD about the objectives and description of the component, and the role of the Bank as Executing Agency proved to be the source of problems during implementation. 9  Appendix A 31. IDA undertook ten supervision missions (a Different Task manager every two missions) Each supervision missiorn reviewed in full all activities under the project and left behind extensive Aide Memoires and Schedules of Tasks to be carried out by the Implementation Units. It was not always possible for these units to conclude these within the time horizon set out by the Supervision missions, which resulted in delays in disbursements and the need to extend the date of completion by one year. 28. The ICR prepared by the Government on the one hand considers that Bank's full involvement with the project implementation and the sound recommendations provided was instrumental in the success of the project implementation. On the other hand PM/LG and NETF although they found the Supervision Missions very useful they felt that the frequency of change of Task Managers, and the attitude of some T/M who tended to be more concerned with fault finding than assisting to address constraints in carrying out the project did not help the implementation process. 29. The observation of the Mission was that all supervisions undertaken had very constructive results towards the completion of the Project with Disbursements increasing following each supervision mission. It is possibly true that some Supervision Missions seemed to place too much emphasis on disbursements, without recognizing that the delays had been caused by legitimate policy discussions or design flaws which could have been foreseen at appraisal. Given these conditions the Bank could have been more supportive to the government while lthese changes were taking place. There also seems to have been inadequate support to the borrower when decentralization of procurement was been attempted. The mid-term review was used very effectively to take stock of issues and make recommendations. Bank performance improved markedly in the latter years of implementation. 30. Borrower Performance was also satisfactory, during identification and preparation but there were serious problems with some of the components. While there was a clear vision of what was needed for the capacity building component, the policies and strategies for some of the quality components was not as clear. This led to delays in decision making and changes in policy especially in relation to methods for teaching science. At appraisal, the borrower performance was satisfactory, but again positions were taken on issues on which there was no consensus, example support for textbooks development by ICD. The request to include the NETF component without a clear vision of its role and how it would operate vas also unwise. This decision led to changes in design that adversely limited the impact of what an institution such as NETF could have had. During implementation borrower performance was satisfactory after a troubled stait The Project Implementation Units also coped well with the restructuring of the Bank and changes in procurement guidelines. There was a marked improvement once clear decisions were taken on key issues especially after the mid-term review and most of the targets were met although much later than expected. Management of project accounts was a major weakness for all the three Implementation Units throughout the implementation period, and resulted in cost overruns on three components. A major weakness which continues to impact adversely on the sector is the lack of a comprehensive vision of the sector and a mechanism for coordinating the various ministries and agencies involved in the education. The attempt to force coordination 10  Appendix A through the establishment of only one coordination unit for project implementation at the beginning failed. Also the establishment of Special Implementation Units independent of the line functions of a Ministry neither increased the implementation capacity nor helped provide the opportunity for Institution building within the concerned Ministry. Key Lessons Learned 31. The following are some of the key lessons from this operation: (a) It may not be appropriate to use the traditional project approach to address issues in the sector where the policy frame work is unclear and institutional capacity weak. An instrument such as an Adjustable Project Loan which would have served to support a phased Intervention starting with policy dialogue as planned by the appraisal mission. This option was not available at the time. (b) Decentralization of responsibilities and resources to local agencies and institutions should only be done when clearly defined procedures for the use and management of the funds have been established, including incentives for local agencies to respect reporting and other accountability guidelines. (c) Innovations should not be hastily included in projects (NETF) without adequate discussion of the concept and detailed preparation of the component. (d) In the case of co-financing and parallel or concurrent financing, of components a under the project there should be full discussion and clear understanding with government and the donors involved, on the design of the component and the scope and nature of responsibilities of the various parties involved in the project. This would have prevented the problems which arose under the NETF component. (e) For a trouble free, successful and early disbursement implementation there is need for a well organized Pre-Start mission which will induct those who will implement the project fully on the project content ,the Bank Guidelines and agree on implementation timetables and note all aspects that would affect adversely the implementation of the Project. Africa Region C:\DATA\WORD\tan\2137\eprpaide.doc 05/02/98 10:50 AM 11  Appendix A Implementation Completion Report. Tanzania - Education Planning and Rehabilitation Project Credit No. 2137-TA Key Indicators for Future Project Operations Project Component Status & Issues Action to be taken Part A - Development of Institutional All Components completely implemented. In general, there is need for follow up action on all items Capacity for Planning and Some of these rather late in the project period to evaluate impact and suggest remedies as necessary. Management of Educational so not yet fully tested in place. Programs (a) Management Training Completed in excess of Planned Numbers. No feed back or evaluation made on impact of training. It is advisable to make a sample evaluation to verify if training produced improvements in the work place of those trained. (b) Refurbishing of MANTEP. The Refurbishing was completed late in the 1. MANTEP to produce a full program and budget of life of the Project, at a much higher level and Planned and Preventive Maintenance annually so as to cost than assumed in the SAR. retain the value of the investment made. 2. MANTEP to develop their plan of action and work program under its new role as a self-sustaining agency. (c) MOEC Information Collection, Component completed. The department is There is need to develop a work program of how to analysis and dissemination now fully computerized. enlarge dissemination and make the information more relevant to future education sector planning. (d) Strengthening the Examination Component fully competed. To establish closer cooperation with the Education Council Statistics Office so that the results of the examinations provide information on quality of education and school perfornance. (e) Building Research Capacity - Planned studies completed. A work program BERE to promote themselves both for government studies University of DSM now in place. Library materials, vehicles and and studies for the private sector. software supplied in full.  Appendix A Future. ,xt Opeaions tsex Page 2 of 3 Project Component Status & Issues Action to be takea Part B - Qualitative Improvements All components completed. Follow-tip to evaluate impact (a) Institute of Curriculum Construction of new buildings and There is need to re-define the role and activities of TIE Development/Tanzania Institute of refurbishment of currently used buildings. now that book production is no longer tleir responsibility. Education. Funds must be provided for TIE to provide in-service training to school teachers and to direct and monitor the activities of the Teachers' Research Centers (TRCs). TIE to promote new inethodologies of teaching. and new curricula. TIE to produce a full program and budget of Planned and Preventive Maintenance annually so as to retain the value of the investment made. (b) Libraries Component All libraries provided as planned at the It is important to receive feedback on use of libraries and University of DSM, TTCs, selected its impact on education of students and teachers at the secondary schools and selected pilot primary beneficiary institutions. schools. (c) Primary School Textbooks The Book Management Unit (BMU) was There is need to formalize the functions of BMU under the (It is noted that this component was assisted to increase its capacity in producing new system of commercially produced textbooks. finded by SlpA and'carried out by and distributing textbooks and reading books It is necessary for the MOEC to work closely with TIE, them outside the credit) to the primary schools. BMU and the Association of Private Publishers to ensure that publication of relevant textbooks and reading books occurs regularly and becomes available in schools so as to retain the current pupil/book ratio of 3:1. (d) Secondary School Textbooks Textbooks provided as planned. TIE to continue updating the science and other curriculum needed for the enhanced secondary program.  Appendix A Future. ACt Operations '.mx Page 3 of 3 ProJect Component Status & Issues Action to be taken Part C - Mobilization of Community All components completed. As stated below. Resources (a) Rehabilitation of primary School All 750 schools rehabilitated as planned in PM/LG to verify how many schools during Ihe last phase Buildings And Supply of Furniture four phases: each phase utilizing a different are still not fully completed and to encourage the and Equipment method of procurement and logistics. comminities to provide any additional funding required. PM/LG must continue a public relations program to _ _ maintain the current decision of the communities to participate in the mainte-nance imp.rovement an.d up-'keep of their schools. The ninth education project now under implementation will help maintain this community intervention. GOT should finance payments outstanding at the closing of the credit. (b) Rehabilitation of Non-governmlent NETF operated this component utilizing Ilte NETF to carry out an inquiry lo establish the number of Secondary Schools Supported by US$ 8.0 million provided as a grant by beneficiary schools not yet completed and to persuade the NETF NORAD. 311 grants were awarded. respective school committees to provide the needed funds to complete the outstanding works. NETF to re-orient their functions and become an umbrella NGO providing funds to DEFTs, instead of continuing as an operating NGO as was the case under this project.  Appendix A TAN8ANWA Zducation Planning and Rehabilitation Project (CR. 2137 TA) Implemntation Completion Mission (March 19- April 16,1998) Aid e Xemoire Category Credit Allocation in SDR. % Variation:Closing/Initial. Initially Kid Term Closing and Review t variation category 1. 1,970,000 2,S00,000 -3,00,000 Part A:C.W. MZENAP Part S:C.W.TIE-TRCs-Univ.DSS + 52.3 % Furniture,9quipment,Vehicles 2,200,000 3,000,000 3,100,000 + 40.9% Secondary Textbooks etc 2,720,000 800,000 1,600,000 -41.1% TIE: 6,810,000 3,960,000 3,600,000 Curriculum/Txtbks,Development - 47.14% Training -Fellowships Research and Studies 760,000 600,000 950,000 _+ 25.00% Project Management and non salary 600,000 500,000 350,000 admin.costs - - 41.67% Matching Grants for Primary Schools mm 400,000 245,000 Girls Secondary School Bursars. * 300,000 256,000 - 14.7% 2.Category 8,320,000 8,500,000 9,589,000 Part C: MobilLzation of Coauunity + 15.3% Resources: Construction Materials and Furniture for Primary Schools Consultants and Training 680,000 500,000 550,000 .__ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ I f - 19.1% Project Management and non salary 150,000' 500,000 800,000 costs + 433.3% Unallocated 4,970,000 1,100,000 TOTALS 29.0 nil. 23.7 ail. 23.7 ail.  Implementation Completion Report Appendix B UNITED ]REPUBLIC OF TANZANIA Cab16ELMW DAR ES SALAAM ?.mTt OF suucA..ON AD tw T Telpho 110150-V2/110146-9 P.O sm.9121 TeleX 41742 D D S SALAAM FM. 113271 In reply pleaue quota: RslNo:ED/EP/S2 IDAGe0jVoL.VY5 DI m:: June 3'0, 190a Mr. James W. Asamn, County Director for Tanzania. Africa Region, The World Bank, 18 H Sureva N.W. Washing DC 20433, U.S.A. Dear Mr. Adamns TANZ4NL4: EDUCATIONPL4wNVING AND REHABUITA17ONPROJECT- CR 2137-TA IMPLEMANTATION COMLETIONREPORT - Ai& Memir. Pleas refer to your lener of May 15, 1998 together with the Aide Memire of the March 19 to April 16, 1998 Mission. It was my pleasuzo to meet with the mission at various stages of the preparation of the ICR and discuss the findlinp and r etins which I found usfl and oonstrctv Among the insues raised In your letter, were, development of cector approach to educatUon. fnancing of primazy education, iwvolving the PMO (LO) in ongoing progammes and the restrucming of NETF so as to render it sustinable. I am pleased to let you know that the Ministry of Education and Culture has already started working on these scriously We have gone though the Aiue Memoim itelf and are satiafded that it generally gives a true picture of the ICR However, allow me to straighten up a few inan- lea/aVa. Those ae- Aide Memoire p.2 pam 2: The name of the chairman NETF Board of Trustees is Mx. Suleinn Mv. Hog Aide Memoire p.2. pam 2: Mr. Haroun Sulciman was the Acting Principal Secretary (MoE zanzibr) Aide Memoire p.4. pam 13: last sentence - "Education and Traiimng Poliy Aide Memoim p.8 para 25: ..-the Project Coordinator wals someimes carryW out duties as Acdng Direotr of Planing up. However, aer 1994 he worked foi time on the projeat The last document prseted to the miusion with 40 pages represent the Sovanmet verion of the ICR in accordance with the forikt provided suymmy therein (p. 1-10) is a good Trpreantation of the rest. Bea regards Yours snceely, A.R2V S. Rajab PERBMANENT SECRETARY Dr. B. Malangalil, WB Misson Dar es SaisAm adam  Appendix B IMPLEMENTrATION CO.MIPLETION REPORT (Some Co ninents from the PCT (P.N10/LG) 1. Page 2 para 9: We fully agree with the statement that significant gains vvere made in increasing the involvement of cummunities in school rehabilitation and maintenance. 2. Page 5 para 24: T'he last sentence could be reworded to readln addition tdhe PCT (PMO/LG) was directed to include 48 more schools than planned.' As it stands, the sentence implies tlhat the addition of 48 schools was done by the whims of the PCT. The truth is that the PCT was directed by high authorities to do so; and in several cases the Bank's 'no objection' was obtained before taking on the additional schools. 3. Page 9 para 47: T'he gist of this paragraph should take cognisance of the faict that the PCT (PMO/LG) had only five officers and the project was spread out in 103 districts. Physical visits to the implementing Councils was absolutely necessary. But the five officers from the PCT could not cover all the Councils. So, it was agreed by the PMO that officers from other departments of the PMO should assist in making physical visits to the Councils to follow up on various aspects of the project (e.g. collection of financial returns;and follow up of school rehabilitation) I'he project had to finance these trips. 4. Last page of Appendix: Status and Issues/ Action to be taken: (a) We agree with this statement, that all 750 schools were rehabilited as planned; but as rioted above, 48 additional schools were also rehabilited.In May, 1998 all the phase 4 schools were revisited (earlier visits were made in November, 1997) to determine the current status of school rehabilitation. In most districts the schools have been completed 1 00%N,. But in others, two more months are needed to complete the work. Rehablitation work is still going on, an? the PMO/LG continues to urge the Councils to complete the remaining work. S ngu ' PROJECT CO-ORDINATOR  Appendic B UNITED REPUBLIC OF TANZANIA Cables:ELIMU DAR ES SALAAM Telephone 11015012 & 110146/9 MINISTRY OF EDUCATiON AND CULTURE Telex 41742 P.O. Box 9121 Fax: 113271 DARES SALAAM In reply please quote: Ref. No:ED/EP/6TH IDA(PP/Vol.lI./136 Date: June 11, 1998 Ms. Rest Laswai Resident Mission DAR ES SALAAM. Dear Rest, Please refer to our telephone conversation this morning. (a) ICR: I do not have many comments except for the few that follow: (i) Project objectives para 4 last sentense "poor girls in Secondary School" Since in the case of TZ it is not usual for girls to pay school fees themselves, let us change this bit to read "girls from poor households". (ii) Implementation experience and Results: Para 11 last five words: to delete and replace with "Education and Training Policy". Para 12 - The annual statistical bulletin titled "Basic Education Statistics (BEST)" BEST has been in existence long before the project started. The booklets produced during the project period are titled "Basic Education Statistics in Tanzania (BEST) Data Analysis". Although as for the usual BEST, the publication was improved a great deal and was produced very much sooner than before. Para 14 - on MANTEP: Under the new Civil Service Reform and re-structuring of Ministries, MANTEP is designated as an "Agency". Para 33 - NETF to be self-financing. I am not sure about this unless we mean "in operatiorial costs"; but as for the main objective of assisting secondary schools, it has to receive fimds from somewhere else to be passed on to the schools. (iii) Summary of Assessments B: Project Sustainability -  Appendix B Quite a number of the project sub-components will be sustained especially after re-structuring. I would assess sutainability as likely. (iv) Status of Legal Covenants: Article 4 Section 4. 01(b) The financial Auidits for FY 96 from MOEC were completed and submitted on February 25, 1997. Schedule 4.66(vii) Preinvestment Study: This was completed and resulted into HRDP Cr 2991-TA. (b) Purchase of vehicles Herewith please find a legible photocopy of the LAPSO prices. The unit price in Tsh. is 14,648,525 at the rate of Tsh.5.00 per one Japanese Yen. Regards. Yours sincerely, D.Bagends