Mozambique - Second Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 19524 IMPLEMENTATION COMPLETION REPORT THE REPUBLIC OF MOZAMBIQUE SECOND EDUCATION PROJECT (CREDIT 2200-MOZ) June 28, 1999 Africa Human Development I 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 Currency unit = Metrical (X); pI. Meticais US$1 = MT 890 (At Appraisal, February 1990) MT 1 = US$ 0.00112 FISCAL YEAR OF BORROWER January 1 - December 31 SCHOOL YEAR OF BORROWER February - December UNIVERSfTY YEAR OF BORROWER August - June MEASURES Metric System ACRONYMS AND ABBREVIATIONS ADB African Development Bank AMME Association for Mozamnbican Women and Education CFPP Centro de Formacao Profissional de Professores (Teacher Training Center for EP1 Level) DAF Directorate for Administration and Finance (in MINED) DCA Development Credit Agreement EDP Education Development Plan EP1 Grades 1 through 5 (Primary education, level 1) EP2 Grades 6 and 7 (Primary education, level 2) ESG Grades 8 through 10 (Secondary education) ESSP Education Sector Strategic Program GATECE School Construction Maintenance Units GEPE Gabinete de Gestao de Projetos Educacionais (Education Projects Implementation Unit) HIPC Heavily Indebted Poor Countries IAP Instituto de Aperfeicoamento do Professores (Teacher In-Service Training Institute) ICR Implementation Completion Report IDA International Development Association INDE Institute for the Development of Education MINED Ministry of Education MPF Ministry of Planning and Finance NGO Non-Governmental Organization PIU Project Implementation Unit SAR Staff Appraisal Report SIDA Swedish International Development Agency UEM Universidade Eduardo Mondlane UNDP United Nations Development Program WFP World Food Program ZIP Zona de Influencia Pedagogica (Pedagogical Influence Zone) Managers and Staff Responsible Vice President: Callisto Madavo (AFRVP) Country Director: Phyllis Pomerantz (AFC02) Sector Manager: Ruth Kagia (AFTHI) Task Team Leaders: Donald Hamilton I S0ren Nellemann (AFTH1)  FOR OFFICIAL USE ONLY TABLE OF CONTENTS Preface Evaluation Summary------------------------------------------------------------------------------------------i Part I Project Implementation Assessment ---------------------------------------------------------------- 1 A. Project Objectives ---------------------------------------------------------------------------------------------- 1 B. Achievement of Project Objectives ----------------------------------------------------------------- 3 C. Implementation Experience and Results-----------------------------------------------------------6 D. Major Factors Affecting Project-------------------------------------------------------------------- 8 E. Project Sustainability-----------------------------------------------------------------------------------------8 F. Bank Performance --------------------------------------------------------------------------------------------- 9 G. Borrower Performance ---------------------------------------------------------------------------------------- 9 H. Assessment of Outcomes------------------------------------------------------------------------------------- 10 I. Future Operations------------------------------------------------------------------------------------------- 10 J. Key Lessons Learned --------------------------------------------------------------------------- - 11 Part II Statistical Annexes ----------------------------------------------------------------------- ----- 13 Table 1: Summary of Assessments--------------------------------------------------------------------------------13 Table 2: Related Bank Loans/Credits----------------------------------------------------------------------------14 Table 3: Project Timetable- --------------------------------------------------------------------------------------16 Table 4: Credit Disbursements, Cumulative Estimated and Actual------------------------------------------16 Table 5: Key Indicators for Project Implementation --- ------------------------------------------17 Table 6: Key Indicators for Project Operation------------------------------------------------------------------19 Table 7: Studies Included in Project-----------------------------------------------------------------------------21 Table 8a: Project Costs-----------------------------------------------------------------------------------------------22 Table 8b: Project Financing---------------------------------------------------------------------------------------23 Table 9: Economic Costs and Benefits --------------------------------------------------------------------------23 Table 10: Status of Legal Covenants-------------------------------------------------------------------------------24 Table 1 1: Compliance with Operational Manual Statements---------------------------------------------------28 Table 12: Bank Resources - Staff Inputs ----------------------------------------------------------28 Table 13: Bank Resources - Missions-----------------------------------------------------------------------------29 Part III Appendixes------------------------------------------------------------------------------------------- 30 Appendix A Aide Memoire from the Implementation Completion Mission/ Comments from the Borrower ---------------------------------------------------------------------------------- 30 Appendix B Implementation Completion Report by the Ministry of Education----------------------------33 Maps IBRD 22385 - Urban Population Speaking Portuguese IBRD 22386 - Conditions of Accessibility as of February 1990 IBRD 22466 - Investment in Education Infrastructure 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.   IMPLEMENTATION COMPLETION REPORT THE REPUBLIC OF MOZAMBIQUE SECOND EDUCATION PROJECT (CREDIT 2200-MOZ) PREFACE This is the Implementation Completion Report (ICR) for the Mozambique Second Education Project (Education II), for which Credit 2200-MOZ in the amount of SDR 38.7 million (US$53.7 million equivalent) was approved on December 20, 1990 and made effective on July 26, 1991. The original closing date for the project was October 31, 1996. The actual closing date was December 31, 1998, after two extensions of the original closing date. SDR 37.7 million were disbursed, and the last disbursement took place on June 2, 1999. A balance of SDR 990,000 (US$ 1.3 million) will be cancelled. Co-financing in the amount of US$4.8 million was provided by the United Nations Development Program (UNDP). The ICR was prepared by Donald Hamilton (Cluster Team Leader, AFTHl), S0ren Nellemann (Economist, AFTHI) and Vanessa Saldanha (AFTHI). A number of consultants contributed to earlier drafts of the report: David N. Plank, Maribel A. Sevilla and Vincent Fruchard. The ICR was reviewed by Phyllis Pomerantz (Country Director, AFC02) and Ruth Kagia (Sector Manager, AFTH 1). Ricardo Silveira (LCSHD), Andrew Follner (Operation Analyst, AFTH1), Jaime Biderman and Charles Magnus (AFTS 1) provided valuable comments, as did the Borrower and co-financier during the preparation of the ICR. Preparation of this ICR commenced during the Bank's final completion mission, which took place from March 8 to April 3, 1999. The Borrower assisted the Bank in the preparation of this ICR by participating and rendering professional assistance to the mission. The ICR is based on the mission and on documents in the project file. The Borrower's views as reflected in the mission's Aide-Memoire have been included in the preparation of the ICR, in addition to their own evaluation of the project (see Appendix B).   EVALUATION SUMMARY 1. Introduction. The Second Education Project (Education II Project) was designed and implemented during a period of tremendous economic, social and political changes in Mozambique. During this period the country moved from civil war and a one-party rule to being a post-conflict, democratic society. The project was designed in 1989-1990 during the civil war, to assist the Government in strengthening its capacity to manage education and to improve the quality and delivery of education in the areas outside the war zones, mainly the urban areas. The project was inspired and influenced by the Jomtien Conference on education. UNDP provided co-financing. 2. Project objectives, as stated in the Staff Appraisal Report (SAR), were threefold: (a) to improve the quality and efficiency ofprimary education by financing pre-service and in-service training for teachers; providing them with pedagogical support; introducing distance education for teacher training; rehabilitating and constructing schools in Maputo, Dondo, Beira and Nacala; and introducing five new initiatives to enhance effective learning - viz: instruction in the local language, student achievement testing, provision of reading materials, testing extramural programs, and student health interventions; (b) to improve the quality and efficiency of the University of Eduardo Mondlane (UEM), especially in enhancing the University's capacity for strategic management and long-range planning, strengthening the teaching of physical sciences, engineering and economics, and rehabilitating and furnishing the physical facilities for these faculties; and (c) to strengthen the management of the education sector, particularly the Ministry's ability to address financial monitoring and control. During negotiations it was decided that support should be provided for: (i) the development of a textbook policy and action plan; (ii) the revision of the primary school curricula; (iii) the development of secondary school curricula; (iv) carrying out educational research projects, and (v) extension of the school year. The project was amended in 1993 and 1995, the latter to include: (a) girls' education; and (b) technical training. The latter was aimed at addressing the issue of reintegrating demobilized soldiers. 3. At the time of appraisal, project objectives were realistic and feasible, based on the needs of the geographical areas in which the project was going to be implemented. However, the inclusion of the university component did not take proper account of the lack of coordination between the Ministry of Education (MINED) and the University. With the Government's decision to expand the scope and coverage of the project to consolidate peace at the end of the war, new challenges emerged. In particular, there was inadequate capacity for the implementation of the quality initiatives and for the construction of rural schools 4. Achievement of Project Objectives and Outcomes. Overall, despite some delays and problems, the project outcomes were satisfactory. An important contributing factor was the restructuring of the project, which helped to accelerate implementation and enabled resources to be channeled to reconstruction needs. It helped to meet the changes in the demand for education, and to provide children with increased access to schooling during the post-war period when the environment was characterized by the return of refugees, displaced families, teacher and demobilized soldiers. In addition, the project has significantly contributed to an improved donor collaboration, by helping the Government to launch its ten-year Education Development Plan (EDP) and the Education Sector Strategic Program (ESSP) for 1999-2003. 5. The most important achievements in the context of the first component are the: (i) successful launching of the distance education program for teachers; and (ii) complete  Mozambique Second Education Project ICR ii rehabilitation and reconstruction of the primary school network to above pre-war levels. Most of the other quality initiatives were completed, some with delays but within their original scope. This included the distribution of 4.35 million textbooks. Also, a pilot on school health and nutrition was successfully implemented through a national NGO, Association for Mozambican Women and Education (AMME). With regard to the second component, the major achievement was the rehabilitation of basic science, engineering and the faculty of economics. Manpower development initiatives were limited to what was done prior to 1992, when these activities were included in the new higher education project. Finally, on the third component the most significant impact was the establishment of an education statistical system to record student and school data as a means of enhancing the Ministry's capacity to budget and record expenditures. Otherwise, little was achieved with regard to strengthening MINED's financial management and control system. 6. Measured against the revised project description, the objectives were substantially achieved. Beyond the achievement of specific project objectives, the project provided an opportunity for the reconstruction program to start as soon as peace returned. This established a foundation for the post-conflict restructuring of the education system and aided the transition from war to peace and democracy. 7. Implementation Record and Major Factors Affecting the Project. The project experienced serious delays. Project implementation was delayed due to personnel problems at Education Projects Implementation Unit (GEPE), political impediments, and a lack of ownership and knowledge about the project within a wider audience in the Ministry. Some of the implementation delays were exacerbated by significant delays in construction activities which were conditioned on compliance with two covenants. These required the Government to prepare a textbook policy and set up maintenance units at provincial level before disbursements for school construction could be made. This in turn influenced the extension of the project closing date twice. Some of the construction delays were a result of weather conditions (flooding, seasonal rains) delaying the rural school construction program with World Food Program (WFP). Others were a result of problems with contractual arrangements, particularly in relation to sub-contracting arrangements and poor performance of some contractors. This often resulted in extra overhead costs to the project and created administrative complications in moving construction activities forward within set time schedules. The procurement of 4.3 million textbooks for grades 3 to 7 was delayed, partly as result of an as yet unresolved dispute between the Borrower and the supplier on the quality of books supplied compared to tender specifications. 8. Project Sustainability. The accomplishments achieved under the Education II Project are mixed, but overall are likely to remain sustainable. The lion's share of project activities, such as the large number of new schools and rehabilitated classrooms, the launching of the distance education program, the educational statistical system and the construction and refurbishing of the university faculties will be sustained and supported in both the short to medium term by the joint donor-Government ESSP program or through the on-going Capacity Building Project. Government funding has been increased under ESSP and is consistent with the rolling Medium- Term Expenditure Framework. 9. Bank Performance. Bank performance was satisfactory during project identification and marginally satisfactory during preparation and appraisal, as the project was a bit ambitious for a fast changing context. However, achievement of the project objectives and the size of the project would have significantly inproved the quality of education in the targeted areas and laid the foundation for further development of the system when peace returned. Furthermore, line directorates of MINED were inadequately involved in preparation. This may have resulted in a lack of broader political commitment and ownership of the project.  Mozambique Second Education Project ICR iii 10. Bank performance during project supervision (rated satisfactory) improved over the life of the project and assisted with project implementation. In some instances the Bank could have provided better and more timely advice on procurement and disbursement. Over the life of the project, the level of resources committed to project supervision was satisfactory. On average, 22.5 weeks of staff time per year were earmarked for project supervision. There was been a good deal of continuity in personnel who participated in project supervision. Various teams provided a good skills mix. This helped to establish good relationships with counterparts. 11. Borrower Performance. Borrower performance improved gradually over the life of the project. The preparation and implementation of the project was satisfactory. Compliance with Covenants was satisfactory with the exception of delays in compliance with the textbook policy, decentralization and submission of the 1997 annual audit report. The lack of implementation in its earlier years was exacerbated by the lack of experience and detailed procedures in executing a Bank project within MINED. As a result the burden was shifted on to GEPE for the execution of sub-components, which led to further dependency on GEPE for nearly every action. At the same time GEPE was inadequately staffed to provide support on issues of educational substance. This resulted in a stalemate of the "soft" components until 1995 when implementation accelerated. 12. Future Operation. The Education II Project contributed to establishing a basis for broad sector dialogue and refining donor collaboration. In May 1998 the Govermnent and donors jointly assessed the new Education Sector Strategic Program for 1999-2003. The program is being developed as a sector wide program (SWAP) to provide a joint framework for all donors and to consolidate past gains also supported by the Education II Project, and to further improve quality, access and institutional capacity. 13. Key Lessons Learned. Some key lessons have emerged from the experience associated with this credit: * Implementation through external PIU. To ensure impact on learning outcomes, project activities should be implemented through the line directorates, which are responsible for managing the recurrent budget and which have a better sense of appropriate programs. Furthermore, closer collaboration with end-users in the procurement decision making process must be established to ensure the delivery of desired goods and services. In this context it is important to identify clearly the authority and reporting level of the PIU. Lack of clearly defined authority can result in severe tensions between ministerial staff and the PIU. This impairs project implementation. * Bank's responsiveness to change/flexibility in design and allocation offunds are extremely important for implementing projects in highly uncertain environments such as changing political and economic circumstances like rapid economic growth or war. Such environments can bring about large shifts in the nature and scale of the objectives. The Bank's administrative and procedural requirements must be made easier in order to assist task teams to better respond to such country-related changes. Bank loan/credits should be flexible to ensure appropriate modifications of both objectives and financial allocations to a country's changing circumstances.