Completion Report - Asian Development Bank€¦ · 15 (15 November 2001) (08 June 2017) Tk1.00 =...

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Completion Report Project Number: 31309-013 Loan Number: 1881 Grant Number: 3899 September 2018 Bangladesh: Post-Literacy and Continuing Education Project This document is being disclosed to the public in accordance with ADB’s Public Communications Policy 2011.

Transcript of Completion Report - Asian Development Bank€¦ · 15 (15 November 2001) (08 June 2017) Tk1.00 =...

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Completion Report

Project Number: 31309-013 Loan Number: 1881

Grant Number: 3899 September 2018

Bangladesh: Post-Literacy and Continuing Education

Project This document is being disclosed to the public in accordance with ADB’s Public Communications Policy 2011.

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CURRENCY EQUIVALENTS

Currency Unit – taka (Tk)

At Appraisal At Project Completion 15 (15 November 2001) (08 June 2017)

Tk1.00 = $0.0176 Tk1.00 = $0.01241 $1.00 = Tk56.95 $1.00 = Tk80.55

ABBREVIATIONS

ADB – Asian Development Bank BNFE – Bureau of Non-Formal Education DFID – Department for International Development DNFE – Directorate of Non-Formal Education EIRR – economic internal rate of return MIS – management information system MOPA – monitoring partner agency MOPME – Ministry of Primary and Mass Education NFE – nonformal education NGO – nongovernment organization PAS – project administrative service PIMU – project implementation and management unit PLCE – post literacy and continuing education SDC – Swiss Agency for Development and Cooperation SDR – Special drawing right

NOTES

(i) The fiscal year (FY) of the government and its agencies ends on 30 June. FY

before a calendar year denotes the year in which the fiscal year ends, e.g., FY 2018 ends on 30 June 2018.

(ii) In this report, "$" refers to United States dollar.

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Vice-President Wencai Zhang, Operations 1 Director General Hun Kim, South Asia Department (SARD) Country Director Manmohan Parkash, Bangladesh Resident Mission (BRM), SARD Team leader Zhigang Li, Social Sector Specialist, SARD Team members Md. Shohidul Alam, Financial Control Analyst, SARD

Urmee Bhattacharjee, Associate Project Analyst, SARD Gi Soon Song, Principal Social Sector Specialist, SARD

Md. Golam Mortaza, Economist, SARD Taniya Fardus, Associate Project Analyst, SARD Nasheeba Selim, Social Development Officer (Gender), SARD Ryotaro Hayashi, Social Sector Economist, SARD

In preparing any country program or strategy, financing any project, or by making any designation of or reference to a particular territory or geographic area in this document, the Asian Development Bank does not intend to make any judgments as to the legal or other status of any territory or area.

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CONTENTS Page

BASIC DATA i

I. PROJECT DESCRIPTION 1

II. DESIGN AND IMPLEMENTATION 1

A. Project Design and Formulation 1 B. Project Outputs 4 C. Project Costs and Financing 6 D. Disbursements 7 E. Project Schedule 7 F. Implementation Arrangements 7 G. Consultant Recruitment and Procurement 8 H. Gender Equity 9 I. Safeguards 9 J. Monitoring and Reporting 9

III. EVALUATION OF PERFORMANCE 10

A. Relevance 10 B. Effectiveness 10 C. Efficiency 11 D. Sustainability 11 E. Development Impact 12 F. Performance of the Borrower and the Executing Agency 12 G. Performance of Cofinanciers 13 H. Performance of the Asian Development Bank 13 I. Overall Assessment 13

IV. ISSUES, LESSONS, AND RECOMMENDATIONS 14

A. Issues and Lessons 14 B. Recommendations 15

APPENDIXES

1. Design and Monitoring Framework 16

2. Project Cost at Appraisal and Actual 23

3. Project Cost by Financier 24

4. Contract Awards and Disbursement of ADB Loan Proceeds 26

5. Chronology of Main Events 28

6. Organization Structure for Project Implementation 33

7. Contracts Financed by the Asian Development Bank 34

8. Gender Action Plan Achievements 35

9. Status of Compliance with Loan Covenants 39

10. Economic Reevaluation 49

11. Summary of Project Impact Study 53

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BASIC DATA

A. Loan Identification

1. Country 2. Loan/grant Numbers 3. Project Title 4. Borrower 5. Executing Agency 6. Amount of Loan/grant 7. Project Completion Report Number 8. Financing Modality

Bangladesh Loan 1881/Grant 3899 Post-Literacy and Continuing Education Project People’s Republic of Bangladesh Directorate of Non-Formal Education/Bureau of Non-Formal Education Loan 1881: SDR50,858,000 ($65,000,000 equivalent) Grant 3899: $12.0 million (Department for International Development, DFID) Grant 3899: $5.0 million (Swiss Agency for Development and Cooperation, SDC) 1728 Project lending

B. Loan Data

1. Appraisal – Date Started 28 August 2001 – Date Completed 13 September 2001

2. Loan Negotiations

– Date Started 12 November 2001 – Date Completed 13 November 2001

3. Date of Board Approval 13 December 2001

4. Date of Loan Agreement 17 January 2002

5. Date of Loan Effectiveness

– In Loan Agreement 17 April 2002 – Revised 28 June 2002 – Number of Extensions 1

6. Project Completion Date

– Appraisal 31 December 2008 – Actual 30 June 2013

7. Loan Closing Date

– In Loan Agreement 31 December 2008 – Actual 08 June 2017 – Number of Extensions 3

8. Financial Closing Date

– Actual 08 June 2017

9. Terms of Loan – Interest Rate 1% per annum during the grace period and

1.5% per annum thereafter – Maturity (number of years) – Grace period

32 8

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C. Grant Data

a) DFID

1. Date of Memorandum of Understanding (MOU) 17 April 2002 2. Date of Amendment to MOU Reducing the Grant to $2

Million 13 November 2007

3. Grant Completion Date – In MOU 30 June 2008 – Actual 30 June 2008

b) SDC

1. Date of Grant Agreement 29 November 2006 2. Grant Completion Date

– In grant agreement – Actual

30 June 2011 30 June 2013

10. Disbursements a. Dates

Loan 1881

Initial Disbursement 11 December 2002

Final Disbursement 24 May 2016

Time Interval 161 months

Effective Date 28 June 2002

Actual Closing Date 8 June 2017

Time Interval 179 months

SDC Grant (3899)

Initial Disbursement 27 October 2008

Final Disbursement 31 March 2016

Time Interval 89 months

Effective Date 29 November 2006

Actual Closing Date 25 July 2017

Time Interval 127 months

DFID Grant (3899)

Initial Disbursement 12 December 2002

Final Disbursement 27 April 2009

Time Interval 76 months

Effective Date 17 April 2002

Actual Closing Date 7 September 2018

Time Interval 196 months

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No. Category Original

Allocation Partial

Cancellations

Last Revised

Allocation

Amount Disbursed

Undisbursed Balance

1 Civil works 0.261 (0.025) 0.286 0.285 0.001 2 Equipment 0.861 0.763 0.098 0.098 0.000 3 Post literacy and

continuing education implementation

37.103 15.127 21.976 17.909 4.067

4 Policy, planning, and public–private partnerships

1.494 0.000 1.494 1.255 0.239

5

Curriculum and materials development, production and distribution

1.286 0 1.286 0.412 0.874

6 Training 0.585 0 0.585 0.413 0.172 7 Consulting services 2.965 0.843 2.122 1.211 0.911 8 Interest charge 1.627 0 1.627 0.654 0.973 9 Unallocated 4.676 4.630 0.046 0 0.046 Total (SDR million) 50.858 21.338 29.520 22.237 7.283 Total ($ million equivalent) 65.00 33.025 43.743 33.778 9.965

() = negative.

c. Grant Amount ($)

No. Category Total

Disbursement SDC

Total Disbursement

DFID Grand Total

1 Civil works - - - 2 Equipment - 22,873.09 22,873.09 3 Post literacy and continuing

education implementation 4,108,862.27 289,366.94 4,398,229.21

4 Policy, planning, and public–private partnerships

237,618.38 48,710.73 286,329.11

5 Curriculum and materials development, production and distribution

124,147.14 - 124,147.14

6 Training 120,034.00 306.90 120,034.00 7 Consulting services 337,958.54 78,941.41 416,899.95 8 Interest charge - - - 9 Unallocated - - - Total 4,928,620.33 440,199.07 5,368,819.40

b. Loan Amount (SDR million)

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3. Cost Breakdown by Project Component ($ million)

Component Appraisal Estimate Actual

A. Base Cost

Component 1: Policy framework development 2.46 Component 2: Development, dissemination, and adoption of curricula for post-literacy and continuing education programs

3.18

Component 3: Capacity building for involved organizations

9.89

Component 4: Implementing post-literacy and continuing education programs Subtotal (A)

72.86

88.39

50.49

B. Contingencies 1. Physical contingencies 2. Price contingencies

4.42 4.81

0.00 0.00

Subtotal (B)

9.23 0.00

C. Interest on Loan 2.08 1.01 Total 99.70 51.50

D. Project Data

1. Project Cost ($ million) Cost Appraisal Estimate Actual

Foreign Exchange Cost 11.29 5.52 Local Currency Cost 88.41 45.98

Total 99.70 51.50

2. Financing Plan ($ million)

Cost Appraisal Estimate Actual

Implementation Costs Borrower Financed 20.00 12.35 ADB Financed 62.90 32.77 DFID Financing SDC Financing Beneficiaries

12.00 0.00 2.70

0.44 4.93 0.00

Subtotal 97.60 50.49 IDC Cost

ADB Financed 2.10 1.01 Total 99.70 51.50

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4. Project Schedule

Item Appraisal Estimate Actual

Component 1: Policy framework development Jun 2008 Jan 2006 Component 2: Development, dissemination,

and adoption of curricula for post-literacy and continuing education programs

Jun 2006 Jan 2012

Component 3: Capacity building for involved organizations

Dec 2007 Jun 2013

Component 4: Implementing post-literacy and continuing education programs

Dec 2008 Jun 2013

5. Project Performance Report Ratings

Implementation Period Ratings

Development Objectives

Implementation Progress

From 31 March 2002 to 29 February 2004 Satisfactory Satisfactory From 31 March 2004 Partly Satisfactory Satisfactory From 30 April 2004 to 31 May 2006 Unsatisfactory Unsatisfactory From 30 June 2006 Partly Satisfactory Unsatisfactory From 31 July 2006 to 31 August 2006 Partly Satisfactory Satisfactory From 30 September 2006 to 31 December 2010 Satisfactory Satisfactory From 30 June 2011 to 30 September 2013 On track From 30 September 2013 to 31 December 2013 Potential Problem From 31 January 2014 to 31 December 2016 On track

E. Data on Asian Development Bank Missions

Name of Mission Date No. of Persons

No. of Person-Days

Specialization of Membersa

Loan inception 31 Aug–5 Sep 2002 5 25 a,b,c,d,f Loan review 1 28 Mar–1 Apr 2003 4 16 a,b,d,f Loan review 2 10–15 Sep 2003 2 10 b,d Loan review 3 17–28 Oct 2004 2 22 b,d Fact-finding for reformulation 12–20 Jul 2005 3 24 b,c,d Reformulation Loan review 4

18–31 Oct 2005 1–5 Jun 2008

4 4

52 16

b,c,d b,c,d,f

Joint loan review 1 11–19 Nov 2008 4 32 a,d,c,f Joint loan review 2 1–9 Jun 2009 3 24 a,d,f Joint loan review 3 Joint loan review 4 Joint loan review 5 Joint loan review 6 Joint loan review 7 Special loan review

20–29 Oct 2009 21–31 Mar 2010 12 Oct–4 Nov 2010 6–13 Feb 2011 9–25 Oct 2011 11 Aug 2014

4 3 5 3 3 1

36 30 115 21 48 1

a,d,f a,d,f a,d,f a,d,f a,d,f

b a a = analyst, b = social sector specialist, c = consultant or specialist, d = project officer, e = gender specialist, f = staff from other development partner (i.e., Department for International Development; Swiss Agency for Development and Cooperation).

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I. PROJECT DESCRIPTION 1. Bangladesh was a low-income country with a per capita gross domestic product (GDP) of $381 and overall poverty incidence of 44.7% in fiscal year (FY) 2000. In 2001, the adult literacy rate (15 years and above) was 64%, and millions of adults either missed the chance to attend school or dropped out after a few years of school, resulting in being functionally illiterate. Providing education and skills development opportunities for the poor in Bangladesh was crucial for them to come out of poverty. This places special demands for further skills development on nonformal education (NFE) in particular. 2. The Bangladesh government recognizes that illiteracy and lack of life skills are major factors contributing to rural poverty. Between 1991 and 2000, the government exerted major efforts to eradicate illiteracy and funded literacy training for 17 million learners mainly through community-supported centers and with the assistance of nongovernment organizations (NGOs). However, the neo-literates who had learned basic literacy skills in the NFE programs required further training to reinforce and acquire new skills. 3. The involvement of NGOs, however, had rarely been based on quality training. Fragmentation of resources, concepts, and capacities was the prevailing picture of NFE. There was a strong rationale for concerted efforts to improve curriculum, material development, and training of trainers on a national level. These interventions are expected to improve employability and break the cycle of poverty. 4. Against this backdrop, the Post-literacy and Continuing Education (PLCE) project was approved in 2001. The project aimed to engage 210 NGOs to train an estimated 1.7 million learners (at least 50% of the beneficiaries being women), providing them with opportunities to directly apply new literacy skills, and preparing them for income-generating activities. Building upon the experiences in earlier literacy programs, the project promoted a new approach to NFE, which comprises both literacy and skills training by partnering with NGOs under a unified framework, to better prepare the program participants for income-generating activities. 5. At approval, the goal was to reduce poverty and achieve more equitable human development in rural areas. The purpose was establishment of a community-based and needs-oriented course program and a supporting organizational framework operational in 29 districts. Project had four outputs: (i) policy framework development supported; (ii) curricula for PLCE programs developed, produced, distributed, and continuously adopted; (iii) capacity of involved organizations improved; and (iv) PLCE course packages implemented. The original and revised design and monitoring framework (DMF) are in Appendix 1.

II. DESIGN AND IMPLEMENTATION A. Project Design and Formulation 6. A project preparatory technical assistance supported the project design, 1 which was consistent with the government’s development strategies and plans, and its education policies at appraisal and completion. In the Fifth Five-Year Plan, 1997–2002, which had poverty reduction through accelerated economic growth as the main thrust, the government recognized that illiteracy

1 Supported by a project preparatory technical assistance (PPTA) of $600,000 (TA 3465-BAN: Second Nonformal

Education Project).

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and lack of life skills were the major factors contributing to rural poverty and aimed at “decentralization of the program planning, strategy formulation and resource mobilization and local level participation with ownership in planning and implementation” for education.2 Its budgetary allocations to the education sector in 2000–2001 totaled nearly $1,100 million, representing about 15% of the total government budget and 2.75% of GDP. Of the education sector budget, 47% was allocated to basic education. 7. The government believed promoting NFE was an important means of poverty reduction, and it became a priority. The National Education Policy, 20003 recognized the need for continuing training to help reinforce learning. It also emphasized the need for partnerships with NGOs to ensure the effectiveness of training programs. In 2006, the government adopted the NFE Policy with the objectives of reducing the number of illiterates, offering needs-based continuing education, and ensuring community ownership and sustainability of NFE programs. The project supported the government to adopt the NFE Policy Framework in 2006 and its implementation plan in 2010, which paved the way for the NFE Act in 2014. The Seventh Five Year Plan, 2016–2020 aims to eliminate illiteracy by establishing a community-based network of learning centers, extending effective training, and establishing an NFE board.4 8. The project design was consistent with ADB’s country operational strategy for Bangladesh finalized in 1999. 5 The country operational strategy identified poverty reduction as its overall objective and highlighted three priority areas: (i) promoting faster private sector-led economic growth, (ii) creating better development opportunities for the poor in rural and urban areas, and (iii) promoting human development and environmental protection. 9. In the field of education, ADB’s long-term operational focus was on basic formal education (primary and secondary) and NFE. ADB’s operational strategy for the education sector was aimed at (i) increasing equitable access to basic education, particularly for girls and disadvantaged children; (ii) improving education quality and system efficiency, particularly in teacher training; (iii) strengthening the institutional and management capacities to deliver basic education; and (iv) supporting decentralization and community involvement in education. The country partnership strategy, 2016–2020 6 supports enhancement of productivity and skills of the workforce and maintains focus on basic education and skills training. 10. The project design took a holistic approach by supporting policy, capacity development, and training delivery through coordinated stakeholder participations facilitated by a network of NGOs. The project design was ambitious, with nine outcome (or purpose) performance indicators and 31 output performance indicators. More specifically, the project design included establishing an NFE policy framework and implementation action plan; recruiting 210 NGOs and 29 monitoring partner agencies (MOPAs); conducting 60 curriculum development workshops; producing 16,800 teacher manuals; training 210 master trainers and 16,800 facilitators; training 1.68 million learners, among whom 90% should be employed or self-employed and 60% of female learners should increase

2 Government of the People’s Republic of Bangladesh, Planning Commission. 1998. Fifth Five Year Plan, 1997–2002.

Dhaka. 3 Government of the People’s Republic of Bangladesh, Ministry of Primary and Mass Education. 2000. National

Education Policy. Dhaka. 4 Government of the People’s Republic of Bangladesh, Planning Commission. 2015. Seventh Five Year Plan, 2016–

2020. Dhaka. 5 ADB. 1999. Country Operation Strategy: People’s Republic of Bangladesh, 2000-2005. Manila.

6 ADB. 2016. Country Partnership Strategy: People’s Republic of Bangladesh, 2016-2020. Manila.

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control of their own earnings and investment decisions. The project design also included consultant support for the project administration, for which a consulting firm was recruited in 2003. 11. In November 2003, the government informed ADB of its decision to dissolve the Directorate of Non-Formal Education (DNFE) as executing agency.7 This decision was to mitigate fiduciary risks due to the alleged non-transparency in the selection of NGOs in other government projects.8 With the concern about the fiduciary risks and the absence of an executing agency, ADB had several rounds of discussions with the government and DFID, and decided to suspend the loan and grant in May 2004, until two conditions were met: (i) a comprehensive NFE sector strategy prepared and approved, and (ii) the project redesigned within the framework of approved NFE sector strategy.9 12. Both conditions were met by 2006. With close consultation between the government and ADB, significant institutional progress was achieved during the suspension period. Preparation of an NFE national policy framework was started in May 2004, and the draft was approved by the government for circulation in August 2004. After receiving comments from development partners in August 2005, the government approved the policy framework and informed ADB in January 2006. Taking over the role of executing agency, in April 2005, was the newly established Bureau of Non-Formal Education (BNFE). 13. The project design was revisited by the ADB project reformulation mission in October 2005. A major change in project scope and implementation arrangements was approved through a memorandum dated 31 May 2006, reflecting the institutional changes from DNFE to BNFE, and rationalizing the engagement of NGOs to reduce fiduciary risks and improve service quality. Major changes to outcome (or purpose) performance indicators included (i) reducing the number of implementing NGOs from 210 (or 1 per upazila) to 29 (or 1 per district) to engage larger and more experienced NGOs; and (ii) reducing the number of monitoring partner agencies (MOPAs) from 29 (or 1 per district) to 6 (or 1 per division) to engage fewer and more competent and experienced monitoring agencies. Training target was reduced to 1.6 million learners from original 1.68 million. In addition, BNFE aimed to (i) engage wider stakeholders through a national professional body to oversee the implementation of a newly established NFE Policy Framework and (ii) integrate literacy courses with targeted skills training to enhance the relevance of post-literacy and continuing education. The duration of the project was changed to December 2008 – June 2011. The suspension was lifted effective 20 June 2006. 14. The project was physically completed in June 2013 and financially closed in June 2017. The project closing was delayed because of the two-year suspension of loan, lengthy procedure of implementing NGOs’ selection process and delays in liquidating the advances to NGOs and consulting firms.

7 The DNFE was established under the first Non-Formal Education Project (ADB. 1995. Loan 1390-BAN (SF): Nonformal

Education Project. Manila). It was later abolished by the government and replaced with BNFE. 8 ADB. 2008. Education Sector in Bangladesh: What Worked Well and Why under the Sector-Wide Approach? Manila. 9 The two conditions for lifting the suspension were (i) within 90 days from the date of ADB’s decision to suspend, the

Government’s Task Force shall have prepared and approved, through a consultative and participatory process with all stakeholders, a comprehensive strategy for the NFE sector, and a proposal for implementation arrangements of activities and projects in the sector; and (ii) the Government, ADB and DFID shall have jointly redesigned the loan project as necessary within the framework of the above strategy, and have successfully appraised and approved the redesigned loan project (ADB letter to Economic Relations Division on 3 May 2004).

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B. Project Outputs

1. Output 1—Policy Framework Development Supported 15. Under this output, the project was expected to achieve the following: (i) a detailed plan for implementation of NFE Policy framework (including finance plan) and summary report on national framework and recommendations were made available before the midterm review; (ii) 70% of public and private organizations expressed their satisfaction with results of continuous dialogue in meetings at national, district, subdistrict, and community level; (iii) 80% of all partners were satisfied with information received about ongoing project activities;10 and (iv) equivalency program was designed and piloted. 16. The envisaged outputs on NFE policy and equivalency program were achieved. Despite the loan suspension from 2004 to 2006, a national task force headed by an advisor to the Prime Minister was established to develop the policy framework for NFE through a consultative and participatory process with ADB and other development partners. The policy framework was developed from 2004 to 2005 in a consultative and participatory manner involving the major stakeholders (including the relevant development partners). The NFE Policy framework was approved in 2006. The policy implementation strategic actions were finalized in 2009 and approved in 2010. Summary report and recommendations on NFE’s long-term vision, including a specific PLCE and public–private partnership (PPP) concept, were made available before the midterm review in 2011. The government enacted the NFE Act in 2014.11 The major events are in Table 1.

Table 1: Development of a National Policy Framework for Non-formal Education (Milestones)

Date Event 9 May 2004 Six divisional workshops were held on the national policy framework, which included

participants from relevant development partners and work group members 9–10 Jun 2004 The NFE national task force organized 12 national and local-level workshops involving all

stakeholders, including development partners, to develop a national NFE strategy and implementation arrangements

21 Jul 2004 Recommendations of the NFE national task force together with the NFE assessment study were presented in a national workshop attended by all stakeholders, including ADB

29 Jul 2004 The NFE national task force approved the draft national strategy and outlines of implementation arrangements

1 Aug 2004 Government submitted to ADB the policy framework and outline of implementation arrangements

30 Aug 2005 Consolidated comments from the development partners on the policy framework were sent to MOPME

16 Jan 2006 ADB received a letter from the MOPME confirming the government’s approval of the policy framework

24 Mar 2009 ADB provided comments on the draft NFE Policy implementation plan submitted on 4 Feb 2009

25 Apr 2010 Government approved the NFE Policy framework implementation action plan 27 Nov 2014 Government enacted the NFE Act

ADB = Asian Development Bank, MOPME = Ministry of Primary and Mass Education, NFE = nonformal education. Sources: Asian Development Bank and Bureau of Non-Formal Education, Bangladesh.

10 There is no quantitative information available on stakeholders’ satisfaction during the end of the project. 11 Government of the People’s Republic of Bangladesh, Ministry of Law, Justice and Parliamentary Affairs. NEF Act. 2014.

Dhaka.

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2. Output 2—Curricula for Post-Literacy and Continuing Education Programs Developed, Distributed, and Continuously Adopted

17. The performance indicators under this output were (i) the establishment of national professional body for curriculum and material development; (ii) timely preparation of curriculum and materials; (iii) routine curriculum development with curriculum review based on the monitoring of MOPAs followed by curriculum revision; (iv) 60 curriculum development workshops conducted; (v) teacher manuals produced and distributed; (vi) master trainers and facilitators trained as necessary; and (vii) quality assessment of curricula, materials, and training of trainers by the international consultant for the midterm review and review at the end of year 4. 18. A national professional body for curriculum development was established and began functioning in March 2009. In 2010, 16 trade books were developed and made available, and each trade had its own training manual. The national professional body reviewed the curriculum annually, considering the feedback from the MOPAs. Seven workshops (12% of target) on curriculum development and program implementation had been conducted by the end of 2011. The curriculum was approved in January 2012 by the Ministry of Primary and Mass Education (MOPME). By March 2012, teachers’ manuals had been produced and distributed to 14,362 teachers; 210 program coordinators, 143 master trainers, 479 supervisors, and 14,362 facilitators were trained. Quality assessment of curricula, materials, and training of trainers were conducted by international consultants.

3. Output 3—Capacity of Involved Organizations Improved 19. Under this output, the project was expected to develop the capacity of NGOs and BNFE through trainings as well as monitoring and evaluation. More specifically, targets included (i) 770 staff of implementing NGOs and MOPAs trained on PPP and 1,559 staff on curriculum or material development and training of trainers; (ii) 72 staff of BNFE trained in planning and PLCE concept development; (iii) 420 staff of implementing NGOs and 14,490 facilitators trained on course implementation; (iv) 174 staff of MOPAs trained on monitoring and evaluation; (v) all concerned organizations executed administrative and organizational tasks according to agreed standards; (vi) the accreditation system of NGOs reported on with recommendations by the international consultant; (vii) new materials and procedures prepared for management information system (MIS)-related activities at district and subdistrict levels; (viii) new roles and responsibilities defined for each level of administration in the context of decentralized and community-based PLCE courses, and adopted by MOPME and BNFE; (ix) Internet web pages on the project and curriculum and materials developed and regularly updated by the BNFE monitoring and evaluation section; and (x) data exchange between MIS and BNFE and/or implementing NGOs undertaken through e-mails. 20. The project trained (i) 967 staff of implementing NGOs and MOPA on curriculum materials (62% of target); (ii) 832 implementing NGO staff (198% of target) and 14,362 facilitators (99% of target) on course implementation; (iii) 135 MOPA staff on program monitoring and evaluation (78% of target); and (iv) 98 BNFE staff on staff development (136% of target). Accreditation system for NGOs was developed in 2011, and a web-based MIS in 2012. An institutional strengthening and sustainability plan was prepared and distributed in 2011, including PPP, decentralized planning management, and the shifting of BNFE and MOPME roles from direct implementation to management of implementation. Beginning May 2010, all documents and information developed under the project, including a list of continuing education centers (CECs) with pictures and learners’ lists, were regularly uploaded on the website. By 2017, the MIS was not in use due to the demobilization of PIMU and turnover of BNFE staff.

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4. Output 4—Post-Literacy and Continuing Education Course Packages Implemented

21. Under this output, (i) 1.6 million learners (50% women) are enrolled; (ii) 14,490 CECs are established for PLCE courses in 29 districts and 210 subdistricts; (iii) CECs correspond to minimum requirements and perform according to agreed-upon standards; (iv) 80% of facilitators and skills trainers used the teaching materials as intended; (v) teaching corresponds to quality levels; (vi) dropout rates reduced to less than 10%; and (vii) learners expressed satisfaction with CECs and resource persons. 22. As of June 2012, a total of 7,147 CECs 12 (49% of target) for PLCE courses had been established in 209 upazilas (subdistricts) of 29 districts and operated according to the standards of the project implementation and management unit (PIMU). In total 1.2 million learners (75% of target) were enrolled, and 1.1 million of them graduated. Of those who graduated, 50% were women (100% of target). The dropout rate was 4.9% (lower than target of 10%). Teaching materials were used by facilitators and resource persons (skill trainers). In general, learners expressed satisfaction with the program which made them more self-reliant, helped reduce poverty and helped women earned more respect in their family and society.13 C. Project Costs and Financing

23. At appraisal, the project was estimated to cost about $99.70 million. At completion, the total project cost stood at $51.50 million, 48.3% lower than the original estimation. The lower than expected cost reflects 25% depreciation of taka (Tk) against the United States dollar, the reduction in development partners’ funding, which contributed to 5% reduction in project cost, the scaling down of project scopes, and difficulties in spending on a large quantity of small programs or activities. A comparison of the costs at appraisal and completion is summarized in Table 2 and detailed in Appendix 2.

Table 2: Comparison of Project Costs at Appraisal and at Completion ($ million)

At Appraisal

At Completion

Variance

Item Amount %

1. Civil works 2. Equipment 3. PLCE implementation 4. Policy, planning, and public–private partnerships 5. Curriculum and material development

0.67 1.43

70.76 2.25

1.95

0.62 0.24

38.87 7.02

0.76

(0.05) (1.19)

(31.89) 4.77

(1.19)

7.46 83.22 45.07

212.00

61.03 6. Training and fellowship 7. Consulting services 8. Recurrent expenditure 9. Taxes and duties 10. Contingencies 11. Interest during construction

1.00 4.46 5.11 0.77 9.23 2.08

0.76 2.22 0.00 0.00 0.00 1.01

(0.24) (2.24) (5.11) (0.77)

(1.07)

24.00 50.22

100.00 100.00

51.44

Total 99.70 51.50 (48.20) 48.35

Source: Asian Development Bank estimates.

12 CEC is a local educational institution outside the formal education system. CECs are usually set up and managed by

communities, with land provided by the communities on short or long-term basis. 13 Government of the People’s Republic of Bangladesh, Ministry of Primary and Mass Education. 2012. Success,

Challenges and Lessons Learnt from the Post-Literacy and Continuing Education for Human Development Project-2. Dhaka.

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24. At appraisal, ADB was expected to finance 65.20% of the total project cost; the government 20.06%, and DFID and beneficiaries the remaining 14.74%. DFID reduced its grant from $12 million to $2 million in April 2006 due to the implementation delay and its other commitments, but SDC partially offset this reduction and committed a grant of $5 million in November 2006. 25. As a result of these changes and lower actual project costs, the share of DFID financing went down from 12% to 0.85%, while the share of government financing increased from 20% to 23.98%. SDC accounted for 9.57% of the financing. The ADB financing increased slightly to 65.60%. The appraisal versus actual project financing is summarized in Table 3 and detailed in Appendix 3.

Table 3: Planned versus Actual Project Financing Planned Actual

Source Amount

($ million) Share of Total

(%) Amount

($ million) Share of Total

(%) Asian Development Bank 65.00 65.20 33.78 65.60 DFID 12.00 12.04 0.44 0.85 Government 20.00 20.06 12.35 23.98 Beneficiary 2.70 2.71 0.00 0.00 SDC 0.00 0.00 4.93 9.57 Total 99.70 100.00 51.50 100.00

DFID = Department for International Development, SDC = Swiss Agency for Development and Cooperation. Source: Asian Development Bank estimates. D. Disbursements 26. ADB disbursed $33.8 million of its loan. This is only 52% of the approved loan amount. The reasons for low disbursement are explained in para 25. DFID grant disbursed $0.44 million (22% of $2 million), and SDC grant disbursed $4.93 million (98.6% of the committed amount). Disbursement of 87% of the ADB loan and DFID and SDC grants used ADB’s advance fund and statement of expenditures procedures, while the remaining 13% used ADB’s direct payment procedure. Disbursement started in 2002, and financial closure stretched to 2017, reflecting the project implementation delay and slow liquation of the advances. The details of the actual disbursement are in Appendix 4. E. Project Schedule 27. The project was envisaged for implementation over 6 years from June 2002 to December 2008. However, the project was physically completed in June 2013 and financially closed in June 2017. The ADB loan was signed about 1 month after approval and made effective about 5 months later. It was suspended from 3 May 2004 to 20 June 2006 due to the absence of project executing agency. ADB’s concurrence to all transactions was withheld from 11 November 2003. Except for the NEF Policy framework, which was developed and approved during 2004–2006, rest of the project activities started only in 2008. ADB loan closing date was extended three times from 31 December 2008 to 30 June 2011, 30 June 2013 and 31 December 2014. The lengthy implementation period was attributable to the loan suspension, difficulties in consultant recruitment, and delays in liquidating the advances. The major chronological events are in Appendix 5.

F. Implementation Arrangements 28. The DNFE was the executing agency at approval. After the discontinuation of DNFE in November 2003, ADB withhold its concurrence to any implementation steps beginning 11 November 2003, and it suspended the loan on 3 May 2004 pending resolution of the issue. On 27

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April 2005, government informed ADB the establishment of BNFE to replace DNFE. ADB resumed the loan on 20 June 2006. 29. The BNFE established a project implementation and management unit (PIMU) headed by a project director to coordinate day-to-day implementation of the project. Three deputy directors and six assistant directors supported the project director. The PIMU worked under the overall guidance of the director general of the BNFE. The PIMU was supported by an international consultant engaged for project administration. 30. An interministerial project coordinating committee headed by the secretary of the MOPME was responsible for overseeing the project, approving operation plans, and ensuring effective coordination of project activities with other NFE projects under the MOPME. District coordination officers (later designated as assistant directors) and deputy commissioners of the districts played a pivotal role in overseeing the project implementation. Upazila (subdistrict) NFE committees headed by the upazila nirbahi officer (chief executive) and district NFE committees chaired by the deputy commissioners played important roles in guiding the implementation of the project. The organizational structure is in Appendix 6. G. Consultant Recruitment and Procurement

a. Consultancy Services

31. According to the project administration memorandum dated October 2002, the project envisaged three contract packages of consulting services: (i) project administrative service (PAS); (ii) curriculum development and program implementation; and (iii) program monitoring, MIS, and capacity building. During implementation, the following consultants were engaged: (i) 7 individual consultants for PAS, MIS, financial management, procurement, and coordination; (ii) 5 firms for PAS, overseas training, curriculum development and program implementation, MIS, and financial auditing; (iii) 5 MOPAs; and (iv) 32 NGOs for PLCE implementation. 32. Recruitment of consulting services from firms followed ADB’s quality-based selection, quality- and cost-based selection, fixed budget selection, and single-source selection methods. Except for selection of the PAS consultant (for which ADB did the shortlisting and technical and financial evaluation, and which took about 8 months), the selection of other firms or NGOs generally took 1–3 years. A major challenge was the evaluation of expressions of interest and shortlisting, as a large number of expressions of interest were received. For example, during selection of NGOs for phase 2 training program implementation, over 300 expressions of interest were received. Another challenge was the quality of technical reports due to lack of experience and capacity of NGOs. No technical reports were approved the first time they were submitted. The consultant selection chronology is included in Appendix 5.

b. Procurement

33. The project financed the vertical extension of BNFE headquarters, vehicles, and office equipment such as computers, photocopiers, and furniture. In total, $547,355 was paid from the ADB loan for the works and equipment. The actual contract awards are in Appendix 4, and the contracts financed by ADB are in Appendix 7.

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H. Gender Equity 34. The project implemented a Gender Action Plan and achieved 27 targets out of the total 30. Gender awareness campaigns and trainings were conducted, and women’s specific needs were assessed and reflected in the PLCE program design, training course selection, and implementation. Of the 16 different types of trades under the project, training courses for 10 trades (63%) were developed in a gender-responsive manner. Women accounted for about 50% of the total enrollment for training and 53.5% of the course completers in income-generating activities. Over 7,000 female teachers or facilitators were trained on quality teaching methods. The Gender Action Plan achievements are in Appendix 8. I. Safeguards 35. Environment, involuntary resettlement, and indigenous people were all categorized as C. No adverse impact was reported by the government. J. Monitoring and Reporting 36. Of the 47 loan covenants, 42 were complied with,14 two substantially complied with, and two partially complied with. The remaining covenant on entering into a contract with an international accounting and project services firm was not relevant as the project design did not include such services. The status of compliance with the loan covenants is in Appendix 9. Compliance with covenants 39, 40, and 44 on performing all obligations set forth in Schedule 6 of the Loan Agreement and sound administrative policies and procedures of the borrower’s departments and agencies was affected by the discontinuation of executing agency. Covenants 47 on operation and maintenance of the project facilities was only partially complied with due to non-utilization of the trade books produced under the project since 2013 and usability of only 12% of the learning centers, most of which were temporary structure by design, as of 2017. Delayed compliance of five covenants (covenants 14, 18, 30, 33, and 34) related to execution of the project activities was due to the loan suspension. Despite the delayed compliance, these covenants helped facilitate the project implementation. 37. The project required (i) submission of detailed baseline data for evaluating the impact of PLCE programs within 15 months of loan effectiveness; (ii) recruitment of MOPAs to monitor and evaluate implementation of PLCE programs and performance of implementing NGOs; (iii) semi-annual reports on implementation progress and operation and maintenance of project facilities; (iv) a project completion report, and (v) submission of annual audit reports with the audited project financial statements. The government’s project completion report15 submitted in 2014 stated that 210 baseline surveys were conducted in 29 districts before selection of learners of the project, covering 3,624,844 respondents. Five MOPAs were recruited, conducted vigorous evaluations, and provided bases for contract termination or renewal. Monthly, quarterly, and annual project progress reports were submitted as required. The project completion report included useful information on project implementation, results, costs, and issues. 38. BNFE withdrew the loan and grant proceeds from ADB and maintained the imprest account. The Foreign Aided Project Audit Directorate (FAPAD), under the Office of the Comptroller and Auditor General (OCAG), the Supreme Audit Institution (SAI) of Bangladesh, was the auditor for

14 Includes five covenants with delayed compliance. 15 Government of the People’s Republic of Bangladesh, Ministry of Primary Education and Mass Education. 2014. Project

Completion Report. Dhaka.

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the project and submitted five annual audit reports promptly for FY2009 – FY2013. There are 65 audit findings altogether, of which, 64 have been settled. Most of the audit findings were related to (i) compliance with the government financial rules and regulations, (ii) adherence to conditions of contract, (iii) supervision of implementing NGOs’ activities, and (iv) financial management by the implementing NGOs and BNFE. The remaining one unresolved audit finding was related to substantiation of expenditure by one implementing NGO. Liquidations of the advances were problematic and took a long time, mainly because full documentation for the summary of expenditure disbursement procedure from 2008 was required, and the supporting documents for the expenditures were inadequate and required further substantiation.

III. EVALUATION OF PERFORMANCE A. Relevance 39. The project is rated less than relevant. Supporting NFE and engaging NGOs in providing literacy and life skills training were aligned with the national and ADB strategies for poverty reduction through decentralization and community involvement in education. Developing the NFE policy framework was relevant to provide the legal grounds and funding basis for pursuing NFE. The choice of project lending modality was appropriate at the time as the results-based lending that focuses on results rather than transactions was not yet available. Based on experience from earlier and ongoing projects engaging NGOs, the project introduced an innovative approach of partnering with NGOs under a unified framework. Under the government’s coordination and working within the NFE framework, the project also supported similar initiatives with other development partners.16 40. However, the project design was complex and ambitious. The initial design envisaged to engage 210 implementing NGOs and 29 MOPAs under a unified framework. Though innovative, it was difficult to achieve given the weak capacity of small NGOs and high fiduciary risks. Achieving the overall intended project outcomes required an executing agency with strong implementation capacity, but this became unavailable due to the discontinuation and re-establishment of executing agency. The project undertook a major scope change, which reduced the number of implementing NGOs to 29 and the number of MOPAs to 6 but kept most of output performance indicators unchanged. Although the project reformulation improved project relevance, it was inadequate. The project implementation remained slow due to lengthy recruitment of NGOs. Due to weak project design, the project outputs were insufficient to achieve some key outcome performance indicators, especially the employability of learners. B. Effectiveness 41. The project is rated less than effective in achieving its expected outputs and outcome. Of nine outcome (purpose) performance indicators, seven PLCE delivery system- or mechanism- related indicators were fully met, one was partially met and remaining one was unmet. The fully met outcome indicators include the establishment and institutionalization of the roles and responsibilities of (i) MOPME, (ii) BNFE, (iii) a multistakeholder professional body to guide the policy framework, (iv) center management committees, and (v) implementing NGOs and MOPAs. In addition, 29 NGOs and 5 MOPAs were recruited to implement, monitor, and evaluate the PLCE programs in all 29 districts. One outcome indicator for women becoming self-reliant was only partially met as only 47% of women became self-reliant against the target 60%. Remaining one outcome indicator

16 From 2001 to 2007, World Bank and SDC implemented Post-Literacy and Continuing Education for Human

Development Project and trained 972,900 learners. The EA was DNFE at appraisal, which was later replaced by BNFE (Implementation Completion and Results Report, ICR0000795, World Bank, 2008).

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remained largely unmet as the self-employment of participants was only 39% (at the end of the training) against the target 90%. 42. Of the 32 output performance indicators (after the revision to the project performance indicators), 24 were fully or substantially achieved and four were partially achieved. For the remaining four, one became redundant due to the achievement of another indicator, and there was no information available to substantiate whether the other three were achieved. 43. Key outputs of the project include: (i) a policy framework developed that was conducive for a flexible, responsive, and sustainable PLCE program through which linkages and division of work between different public and private agencies were established based on PPP principles; (ii) 16,394 facilitators and staff trained from implementing NGOs, MOPAs, and the BNFE (in line with targets); (iii) 1.2 million learners trained (75% of revised target), 50% of whom were women (in line with target), with an overall dropout rate of 4.9% (exceeding 10% target); (iv) 16 trade curricula developed; (vi) 7,147 centers for PLCE courses established (49% of the revised target); and (vii) accreditation system for NGOs developed. The project implemented a Gender Action Plan and achieved 27 of 30 total targets. C. Efficiency 44. The project is rated less than efficient. It was implemented over 11.5 years from December 2001 to June 2013, 4.5 years longer than envisaged. The economic viability of the project was reevaluated following a methodology similar to that used at appraisal. The project achieved an economic internal rate of return (EIRR) of 26.0%, which is higher than the threshold discount rate of 12% but less than the EIRR of 35.3% envisaged at appraisal. The major reasons for the lower EIRR are (i) the 39% employment rate at the end of training, which was much lower than the 90% expected at appraisal; and (ii) the long project implementation period. 45. These negative factors on the economic return were partially offset by (i) the actual incremental wage of $0.28 per day (based on an impact study summarized in Appendix 11), which is slightly higher than the assumed $0.25 per day at appraisal, and (ii) the lower project cost by 48% than the cost at appraisal. The economic reevaluation is in Appendix 10. D. Sustainability 46. The project is rated likely sustainable. The policy environment has been sustained after project completion. The government’s Seventh Five Year Plan, 2016–2020 targets include (i) eliminating 32.5 million adolescent and adult illiterates; (ii) establishing 5,025 community-based learning centers (minimum of one in each union17 plus in certain urban areas); (iii) producing 5 million graduates from the basic literacy project; and (iv) establishing an NFE board. Although there is no annual budget commitment, budgets have been provided for projects or programs. The government introduced the NFE Act in 2014 to implement the NFE Policy developed under the PLCE project. 47. The modality and procedure working with NGOs under a unified framework in the NFE sector was established by the project and will likely sustain in other NFE programs. With the completion of PLCE project, the government approved a 5-year basic literacy program and financed with a budget of Tk4.5 billion in 2014 to continue NFE. To deliver this program, the BNFE and

17 A union is made of nine wards or villages in Bangladesh.

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MOPME continued with the PLCE project modality to engage NGOs. Selection of NGOs was completed in July 2017, and the program implementation started in the following month. 48. Financial sustainability of the project is not a major issue. Consulting services accounted for about 96% of the project costs. The 16,394 facilitators and staff of implementing NGOs, MOPAs, and the BNFE trained under PLCE can continue to benefit the NFE. Less than 2% of the project costs was spent on establishing a total of 7,147 training centers. They were established in the project as temporary structures, but 12% were still in good shape by 2017 and can be used for other training. The BNFE building extension is in use and is in adequate condition. The BNFE and MOPME have committed to take stock of what was produced under the project and will make use of them in basic literacy or other future programs. E. Development Impact 49. The overall impact of the project was satisfactory. The project initiated the NFE Policy framework that led to enactment of the NFE Act in 2014. The NFE Act brought the NFE Policy under a legal framework and provided an institutional guarantee for NFE. The NFE Act aims to establish an NFE Board, standardize the NFE curriculum and learning materials, establish the accreditation system for teachers and graduates, strengthen the BNFE, upgrade literacy and skills training, and create lifelong learning opportunities. The NFE Board has already been established and is expected to implement the NFE agenda in a more vigorous and systematic manner. 50. The project provided PLCE to 1.2 million learners (compared to the targeted 1.6 million), about 50% of whom were women, contributing to ADB’s Results Framework Level 2 Indicator for the number of students educated and trained. The gender action plan achievements are in Appendix 8. Although the employment rate among the graduates was 39%, far below the expected 90%, the average incremental wage gain after attending the PLCE courses is estimated as $0.28 per day, slightly higher than the assumption at appraisal. In addition, awareness on the importance of children’s education, health care, and nutritional issues increased significantly among the families. 51. Other impacts of the project included public policy awareness on gender balance and women’s empowerment through PLCE activities, and changes in attitudes of the community toward women. Before attending the PLCE course, males dominated the family decisions regarding spending household income, children’s education, children’s marriage choices, and family planning. Joint decisions by male and female members of the family increased after attending the PLCE courses. In general, evidence suggests that women and their families benefited greatly from the social and life skills elements in the continuing education courses. This was reflected in improved health, hygiene, school attendance of children, and understanding of laws and advocacy issues. Furthermore, the project enhanced the BNFE’s capacity to plan, budget, and monitor its activities, contributing to increased efficiency and a bottom-up planning approach. A summary of the project impact study is in Appendix 11. F. Performance of the Borrower and the Executing Agency 52. The performance of the borrower and the executing agency was less than satisfactory. The MOPME and BNFE made strenuous efforts to implement the project, particularly with respect to loan signing, development of the NFE Policy framework and implementation of action plan, enactment of the NFE Act, and conducting the impact assessment. The approval of the NFE Policy in 2006 and enactment of NFE Act were significant and institutionalized the NFE. The BNFE recruited service providers following ADB’s recruitment guidelines, evaluated their performance,

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delivered trainings to 1.2 million learners, and conducted an impact study in 2012. Annual audited project financial statements until project closing were submitted on a timely basis. 53. However, the government decided to discontinue the DNFE without the alternative executing agency in place, leading to a loan suspension of more than 2 years and cancellation of $10 million DFID grant. The newly established BNFE was weak on financial management at the beginning and slow in liquidating the imprest account. Substantial audit findings also point to weak financial management. Although the project was physically completed in June 2013, liquidation could not be completed until June 2017, 4 years after the project’s physical completion. There also remain one audit finding to be settled. G. Performance of the Cofinanciers 54. The project was cofinanced by DFID and SDC, and their performance was satisfactory. Initially, DFID was the only cofinancier and provided a grant of $12 million. Even with the discontinuation of DNFE, DFID joined the efforts of the development partners and assisted the government in developing the NFE Policy framework and implementation action plan by participating in the consultation process and providing comments on the drafts. Although it reduced the grant to $2 million in 2006 due to the implementation delay caused by the loan suspension and DFID’s other financial commitments, DFID opposed the idea of the loan cancellation, supported the project, and contributed to the reformulation of the project and resumption of the loan and grant. 55. SDC committed a grant of $5.0 million for the project in November 2006. Even before the financial commitment, SDC was already one of the development partners working with the government on developing the NFE Policy framework and implementation action plan. It participated in all eight joint loan review missions from 2008 to 2011 and most of the steering committee meetings, contributed to the project administration, and enabled full utilization of the grant. In addition, SDC has helped develop a curriculum and a plan on the sustainability of learning centers. H. Performance of the Asian Development Bank 56. ADB’s performance was satisfactory. After the discontinuation of original executing agency, ADB conducted close dialogue with the government and cofinancier on remedial measures to continue and complete the project. With joint efforts by ADB and other stakeholders, a new executing agency and an NFE national policy framework were established within two years and the project resumed. 57. At the inception period of the project, supervision from ADB was inadequate due to lack of staff resources. However, subsequently, ADB efficiently discharged its responsibilities in project implementation. Approvals and disbursements were made generally on time and monitoring was done at every stage. ADB responded promptly when problems arose. Four loan reviews, seven joint loan reviews, one special loan review and two project reformulation missions were fielded by ADB. The government was highly appreciative of ADB’s help, guidance, and assistance to accelerate project implementation.

I. Overall Assessment 58. The project is rated less than successful. The project design is rated less than relevant. Although it is relevant to the government’s development strategy and ADB’s country operational strategies at appraisal and completion, the design was ambitious at appraisal. A major change in

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scope was made but it was inadequate for achieving the intended outcomes within extended implementation period. The project is rated less than effective in achieving the outputs and outcome. It developed the NFE Policy framework that led to enactment of the NFE Act; established 7,147 training centers; and met 75% of the training targets. On the other hand, the employment rate for graduates was only about 39%, far below the expected 90%. The project is rated less than efficient in utilizing the resources. The recalculated EIRR is 26.0%, higher than the threshold discount rate of 12% but less than the EIRR at appraisal. Due to the loan suspension and lengthy recruitment process, the project was implemented over more than 11 years, which was excessively long. The project is rated likely sustainable given the adoption of NFE policy framework and NFE Act which guarantee the continued pursuit of NFE, as well as the launching of the government’s Tk4.5 billion 5-year basic literacy program. The overall rating is summarized in Table 4.

Table 4: Overall Ratings Criteria Rating Relevance Less than relevant Effectiveness Less than effective Efficiency Less than efficient Sustainability Likely sustainable Overall Assessment

Development impact Borrower and executing agency Performance of ADB

Less than successful Satisfactory Less than satisfactory Satisfactory

ADB = Asian Development Bank. Source: Asian Development Bank.

IV. ISSUES, LESSONS, AND RECOMMENDATIONS

A. Issues and Lessons 59. The project was ambitious at approval and had too many outcome and output targets to achieve. This led to complex design, which slowed down the implementation process and increased the fiduciary risks. The project design could have benefitted from a thorough stakeholders’ analysis considering the capacity of participating government agencies and nongovernment organizations. 60. Suspension of the loan following the government’s decision to discontinue DNFE delayed the implementation of the project. When the executing agency had to be restructured, both government and development partners needed to have timely exchange of information, policy dialogue, and coordination for a smooth transition to the new executing agency. 61. Excessive administrative time and cost were spent to complete the procurements, particularly consultant and NGO selection under the investment lending modality. It is important to avoid selecting and managing a large number of consultants and NGOs beyond the administrative capacity of the executing agency and ADB. At the design stage, the number and size of the NGOs need to be carefully decided based on the capacity and quality of service delivery. 62. The open competitive bidding process did not lead to selection of the best qualified NGOs. This suggests the need to select appropriate contracting methods by assessing the NGO market before recruitment. Based on the NGO market study, properly defining terms of reference as well as the evaluation and qualification criteria are the key to attract high-quality service providers. Assessing the financial management capacity of NGOs is equally important to prevent slow liquidation of advances and delayed financial closing of the loan.

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B. Recommendations 63. Close dialogue with stakeholders. The government and ADB should coordinate closely on major changes to loan and project agreements or any other issues relevant to ADB as a financier and development partner. 64. Working together with NGOs. Among more than 30 implementing NGOs under the project, 11 performed well. The government, such as MOPME and BNFE, should recognize their good performance, publicize their contributions, and engage them on a medium- to long-term basis. 65. Approach to nonformal education. It is recommended that the government take a systematic and holistic approach by providing annual budgets and partnering with NGOs or businesses. Rather than using a fragmented project approach, NFE needs to be made available on a systematic and more regular basis to enhance sustainability for those who are not fortunate enough to take part in formal education, raise their literacy level, and supply demanded skills. 66. Project lending modality. It is recommended to consider use of the results-based lending modality for similar projects because ADB’s project lending modality may not be suitable for the diversified small training programs at the grassroots level across a wide geographic area. The results-based lending could focus on (i) forging a healthy, collaborative relationship between the government and civil society; (ii) establishing a systematic approach; (iii) strengthening the contracting and financial management system and the monitoring system; (iv) achieving results; and (v) evaluating impact. 67. Future monitoring. Project facilities such as learning centers, trade books, and MIS are the government’s assets. It is recommended that the government make use of them under its basic literacy program and other training initiatives to economize its resources. The government should monitor (i) utilization of project facilities and assets, such as learning centers and MIS, by the MOPME; (ii) progress of the basic literacy program that was launched in August 2017; and (iii) progress of implementing the NFE Act and achieving the performance targets for NFE defined in the government’s Seventh Five-Year Plan. 68. Timing of the project performance evaluation report. The project performance

evaluation report should be prepared by 2021 to gauge the sustainability of the project.

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DESIGN AND MONITORING FRAMEWORK Design

Summary Performance Indicators

Achievements Original Revised in 2006

Goal Reduced poverty and more equitable human development in rural areas

Number of neo-literates living in poverty reduced At least 50% of neo-literates with increased literacy, life skills, and income-generating capacity are women Increased demand from poor people for training, support for their livelihoods, and recognition of their rights

No change

No change No change

Achieved - 1,103,165 graduates (out of an original 1,200,000 enrollees) received post-literacy education and training in marketable trades leading to employment or self-employment, and 435,622 course completers (39.49%) were involved in income generation activities Achieved - 53.5% of those involved in income-generating activities or 233,053 were women

Achieved - Demand for post-literacy and continuing education (PLCE) training increased as enrollment increased from 63,240 to 370,560 in 2009, 253,920 in 2010, 342,000 in 2011, and 170,000 in 2012 (according to the impact study conducted in 2012)

Purpose A community-based and needs-oriented PLCE course program and a supporting organizational framework operational in 29 districts

A maximum of 210 implementing nongovernment organizations (NGOs) are responsible for implementing PLCE training packages at subdistrict level A maximum of 29 monitoring partner agencies (MOPAs) are responsible at district level for quality monitoring of PLCE courses

Directorate of Non-Formal Education (DNFE) monitors target achievement through district coordinators and associated monitoring

i. A maximum of 29 implementing NGOs are responsible for implementing PLCE training packages at district and subdistrict levels A maximum of 6 MOPAs are responsible at the divisional level and in assigned districts for quality monitoring of PLCE courses

Bureau of Non-Formal Education (BNFE) monitors target achievement through project officers at the district level

Achieved the revised target and 15% of the original target - In total, 32 NGOs implemented the project programs

Achieved 83% of the revised target and 17% of the original target - 5 MOPAs were responsible for quality checking of PLCE programs

Achieved –BNFE monitored the project at the district level through district coordinators, which were later designated as assistant directors

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Appendix 1 17

Design Summary

Performance Indicators Achievements

Original Revised in 2006

associates and program coordinators Primary and Mass Education Division/DNFE support focuses on supervisory and regulatory function

A national task force of NGOs, resource persons, and private companies provides core curricula, materials, and training of master trainers PLCE learners chose skills training based on income-generating opportunity surveys provided by implementing NGOs Center management committees at community level mobilize and help select learners, training venues, and skills trainers; manage learning centers; and monitor facilitators Employment or self-employment (20 days per month and 6 months per year on the average) of participants increased to 90% by 2008

60% of participating women demonstrate increased control of their own earnings and

Ministry of Primary and Mass Education (MOPME)/BNFE support focuses on supervisory and regulatory function

A professional body of NGOs, resource persons, and private companies provides core curricula, materials, and training of master trainers No change

No change Employment or self-employment (20 days per month and 6 months per year on the average) of participants increased from –XX—(baseline) to 90% by 2011 No change

Achieved - BNFE support focused on the supervisory function, whereas MOPME support centered on regulatory functions

Substantially Achieved - A professional body formed within BNFE in 2010 with representation from NGOs, resource persons, and private companies developed curricula and training materials subsequently used for the PLCE courses. Achieved - At the beginning of each course, the implementing NGOs conducted an income-generating opportunity survey that helped learners make informed choices when selecting trades for their skills training

Achieved - At the community level, center management committees helped select learners, training venues, and skills trainers; manage learning centers; and monitor facilitators

Not Achieved - Employment or self-employment of participants was 39% at the end of training

Partially Achieved - 47% of women were involved in various income-generating activities and were self-

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18 Appendix 1

Design Summary

Performance Indicators Achievements

Original Revised in 2006

investment decisions reliant with increased decision-making power in families

Output 1. Policy

framework development supported

1.1. Government action plan (including finance plan) and summary report on national framework and recommendations are made available before comprehensive project review at the end of second year

1.2. Summary report and recommendations on nonformal education (NFE) long-term vision, including specific PLCE and public–private partnership (PPP) concept, are available before midterm review (MTR)

1.3. 70% of public and private

organizations express their satisfaction with results of continuous dialogue in meetings at national, district, subdistrict, and community level

1.4. 80% of all partners are satisfied with information received about ongoing project activities

1.1. Detailed plan for the implementation of NFE Policy framework (including finance plan) and summary report on national framework and recommendations are made available before MTR

1.2. Summary report and

recommendations on implications of NFE Policy framework are available before MTR

1.3. No change

1.4. No change

1.5. Equivalency program designed and piloted

Achieved - Detailed plan for implementing NFE Policy framework (including finance plan) and summary report on national framework and recommendations were made available before MTR was conducted in 2011

Achieved - Summary report and recommendations on NFE long-term vision, including specific PLCE and PPP concept, were made available before MTR in 2011 No information available No information available Achieved - Equivalency program designed and piloted in 2011

2. Curricula for PLCE programs developed, produced, distributed, and continuously adopted

2.1. National Task Force for Curriculum and Material Development and Training of Trainers established as soon as possible after loan effectiveness; members are contracted NGOs, resource persons, and specialists from the private sector

2.1. National professional body for curriculum and material development and training of trainers and NFE resource center established; members are contracted NGOs, resource persons, and specialists from the private sector

Substantially Achieved - National professional body as national task force for curriculum and material development and training of trainers established and functioning properly; NFE resource center was established in 2008 and started functioning

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Appendix 1 19

Design Summary

Performance Indicators Achievements

Original Revised in 2006

2.2. Curriculum and materials

are made available in time and in sufficient quality/quantity for testing (first training cycle) and mass utilization (second–fourth cycles)

2.3. Curriculum review based

on monitoring followed by curriculum revision becomes a routine task of curriculum development based on quality monitoring of MOPAs at the end of each training cycle

2.4. Altogether 60 curriculum

development workshops are conducted by the end of year 3

2.5. 16,800 teacher manuals

are produced and distributed by the end of year 5

2.6. 210 master trainers and 16,800 facilitators are trained by the end of year 5

2.7 Quality assessment of curricula, materials, and training of trainers is prepared by international consultant for MTR and for review at the end of year 4

2.2. No change

2.3. No change

2.4. No change 2.5. Teachers manuals

are produced and distributed

2.6. Master trainers and facilitators are trained as necessary

2.7. No change

Achieved with delay- Curriculum and materials were made available in 2010 to conduct PLCE courses Achieved - The curriculum review on the basis of feedback from MOPAs was a regular annual exercise after each training cycle

Partially Achieved - 16 trade curricula have been developed and distributed to 14,362 teachers (facilitators) by the task force; 7 (1 national and 6 divisional) workshops on curriculum development and program implementation had been conducted by the end of 2011

Achieved - Teacher’s manuals have been produced and distributed to 14,362 facilitators and/or teachers Achieved - A total of 210 program coordinators, 143 master trainers, 479 supervisors, and 14,362 facilitators had been trained by March 2012

No information available

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20 Appendix 1

Design Summary

Performance Indicators Achievements

Original Revised in 2006

3. Capacity of involved organizations improved

3.1. 821 person-months of training for 770 staff of implementing NGOs and MOPAs regarding PPP

3.2. 1,559 staff of

implementing NGOs and MOPAs trained in curriculum/material development and training of trainers

3.3. 72 staff of DNFE trained

in planning and PLCE concept development

3.4. 420 staff of implementing

NGOs and 16,800 facilitators trained for course implementation

3.5. 174 staff of MOPAs

trained in monitoring and evaluation

3.6. All partner organizations execute administrative and organizational tasks according to agreed-upon standards

3.7. Report and

recommendations as to accreditation system of NGOs are made available by international consultant by the end of year 2

3.8. New materials and

procedures are prepared for management information system (MIS)-related activities at

3.1. No change

3.2. No change

3.3. 72 staff of BNFE/MOPME trained in planning and PLCE concept development

3.4. 420 staff of

implementing NGOs and 14,490 facilitators trained in course implementation

3.5. No change

3.6. All concerned organizations execute administrative and organizational tasks according to agreed-upon standards

3.7. Report and

recommendations as to accreditation system of NGOs are made available by international consultant by MTR

3.8. No change

Partially achieved - A PPP handbook has been developed and distributed to explore the widely acceptable PPP model

Partially achieved - 967 staff of implementing NGOs and MOPAs trained in curriculum and/or material development and training of trainers Achieved - 98 staff of BNFE trained on staff development training

Substantially achieved - 832 staff of implementing NGOs and 14,362 facilitators were trained by March 2012

Substantially achieved -135 staff of MOPAs were trained in monitoring and evaluation

Achieved - All partner organizations executed administrative and organizational tasks according to agreed-upon standards

Achieved - Accreditation system developed in 2011

Achieved - Web-based MIS was developed by MIS cell (Local Government Engineering Department) in 2012; the

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Appendix 1 21

Design Summary

Performance Indicators Achievements

Original Revised in 2006

district and subdistrict level by the end of year 3

3.9. New roles and

responsibilities defined for each level of administration in the context of decentralized and community-based PLCE courses by the end of year 2 and adopted by Primary and Mass Education Divison/DNFE by the end of year 3

3.10. Internet web pages supporting information about the project and curriculum/material development are established by the end of year 1; regular updating is ensured by DNFE monitoring and evaluation section

3.11. Starting in year 3, data exchange between DNFE headquarters and district coordinators will be done by e-mail after trial and test phase

3.9. New roles and responsibilities defined for each level of administration in the context of decentralized and community-based PLCE courses by MTR and adopted by MOPME/BNFE by the end of year 3

3.10. Internet web

pages supporting information about the project and curriculum/materials development are established by the end of year 1; regular updating is ensured by BNFE monitoring and evaluation section

3.11. Starting in year 3,

data exchange between central-level MIS and BNFE/implementing NGOs will be done by e-mail after trial and test phase

MIS has already been adopted to the BNFE MIS cell as per the memorandum of understanding with the Local Government Engineering Department

Achieved - Various options of institutional strengthening, including PPP, decentralized planning management, shifting of roles from direct implementation to management of implementation, and sustainability plan were prepared and distributed in 2011

Achieved - Internet website was developed, and all documents and information, including center list with pictures and learner’ list, were regularly uploaded to the website beginning in May 2010

Not applicable - Data exchange was done through the established website

4. PLCE course packages implemented

4.1. Total learners in year 1 of course implementation, 21,600; year 2, 144,000; year 3, 426,480; year 4, 525,120; and year 5, 572,640

4.2. Altogether 8,400 centers are established

4.1. Total learners in year 1 of course implementation, 63,678; year 2, 242,387; years 3–5, 431,367

4.2. Altogether 14,490 centers are

Substantially achieved - By June 2012, 1,200,000 learners had been enrolled (75% of the revised target and 71% of the original target), and 1,103,165 had graduated, including 550,336 female graduates

Partially achieved - By May 2012, 7,147 centers

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22 Appendix 1

Design Summary

Performance Indicators Achievements

Original Revised in 2006

for PLCE courses in 29 districts and 210 subdistricts by the end of year 5

4.3. At least 50% of learners are women

4.4. Continuing education

centers (CECs) correspond to minimum requirements defined by project implementation and management unit (PIMU) by the end of year 1

4.5. Teaching materials are

used in the intended way by 80% of facilitators and (resource persons) skills trainers

4.6. Teaching corresponds

to the quality levels as defined by PIMU by the end of year 2

4.7. Dropout rates are less

than 10% (disaggregated by gender)

4.8. CECs perform

according to agreed-upon standards defined by PIMU at the end of year 1

4.9. Learners express

satisfaction with CECs and resource persons

established for PLCE courses in 29 districts and 210 subdistricts by the end of year 5

4.3. No change

4.4. No change

4.5. No change

4.6. No change

4.7. No change

4.8. No change

4.9. No change

were established in 209 subdistricts of 29 districts; these centers could accommodate 1.2 million learners, so the remaining 34 centers were not required Achieved - 550,336 (50%) of learners were women

Achieved - CECs were established that complied with PIMU requirements

Achieved - Teaching materials have been used in the intended way by all facilitators and resource persons (skill trainers)

Achieved - Teaching corresponded to the quality levels defined by PIMU

Achieved - Average dropout rate was 4.94% (female: 4.76%, male: 5.11%)

Achieved - CECs operated according to PIMU standards

Achieved - Learners in general expressed satisfaction with the facilities and resource persons provided in the CECs, as captured in the report on success stories conducted in 2011–2012

Sources: Asian Development Bank, Ministry of Primary and Mass Education, and Consultant

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Appendix 2 23

PROJECT COST AT APPRAISAL AND ACTUAL ($'000)

Appraisal Estimate Actual

Item Foreign

Exchange Local Currency Total Cost Foreign

Exchange Local

Currency Total Cost

A. Item 1

2. Civil Works 178.00 488.00 666.00 166.65 456.87 623.52

3. Equipment 1,271.00 163.00 1434.00 213.70 27.41 241.10

4. PLCE Implementation 3,563.00 67,193.00 70,756.00 1,957.13 36,908.59 38,865.72

5. Policy, Plan, and PPP 480.00 1,767.00 2,247.00 1,499.65 5,520.60 7,020.25

6. Curriculum and Materials Development 176.00 1,773.00 1,949.00 68.54 690.49 759.03

7. Training/Fellowship 120.00 880.00 1,000.00 91.30 669.50 760.79

8. Consulting Services 2,430.00 2,027.00 4,457.00 1,208.95 1,008.46 2,217.41

9. Recurrent Expenditures 0.00 5,113.00 5,113.00 0.00 0.00 0.00

10. Taxes and Duties 0.00 768.00 768.00 0.00 0.00 0.00

Subtotal (A) 8,218.00 80,172.00 88,390.00 5,205.92 45,281.92 50,487.82

B. Item 2

1. Contingency 991.00 8,240.00 9,231.00 0.00 0.00 0.00

2. Interest Charge 2,080.00 0.00 2,080.00 1,007.46 0.00 1,007.46

Subtotal (B) 3,071.00 8,240.00 11,311.00 1,007.46 0.00 1,007.46

Total (A+B) 11,289.00 88,412.00 99,702.00 6,213.37 45,281.90 51,495.27

ADB = Asian Development Bank, DFID = Department for International Development of the United Kingdom, Gov’t = government, SDC = Swiss Agency for Development and Cooperation. Note: Numbers may not sum precisely because of rounding. Source: Asian Development Bank.

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24 Appendix 3

PROJECT COST BY FINANCIER

TableA3.1: Project Cost at Appraisal by Financier ($'000)

ADB

DFID Government

Beneficiary Total Costa

Amount

% of Cost Category Amount

% of Cost Category Amount

% of Cost Category Amount

% of Cost Category Amount

Taxes and Duties

Item {A} {A/D} {B} {B/D} {C} {C/D} {D} {D/E} {E} {F}

A. Item 1

1. Civil Works 333 50.00 0 0.00 333 50.00 0 0.00 666 0

2. Equipment 1,100 76.71 191 13.32 143 9.97 0 0.00 1,434 0

3. PLCE Implementation 47,421 67.02 9,054 12.80 11,614 16.41 2,688 100 70,756 0

4. Policy, Plan, and PPP 1,910 85.00 337 15.00 0 0.00 0 0.00 2,247 0

5. Curriculum and Materials Development

1,644 84.35 305 15.65 0 0.00 0 0.00 1,949 0

6. Training and fellowship 748 74.80 252 25.20 0 0.00 0 0.00 1,000 0

7. Consulting Services 3,789 84.99 669 15.01 0 0.00 0 0.00 4,457 0

8. Recurrent Expenditures 0 0.00 0 0.00 5,113 100 0 0.00 5,113 0

9. Taxes and Duties 0 0.00 0 0.00 768 100 0 0.00 768 0

Subtotal (A) 56,945 64.42 10,808 12.23 17,971 20.33 2,668 3.02 88,390 0

B. Item 2

1. Contingency 5,976 64.73 1,134 12.28 1,988 21.53 0 0.00 9,232 0

2. Interest Charge 2,080 100 0 0.00 0 0.00 0 0.00 2,080 0

Subtotal (B) 8,056 164.73 1,134 12.28 1,988 21.53 0 0.00 11,312 0

Total Project Cost (A+B) 65,001 11,942 19,959 2,668 99,702 0

% Total Project Cost

65.20

11.98 20.02 2.68

100

Note: 1. Total project cost is slightly higher than the actual sum of financiers’ costs given the oversight in providing the contingency details in the RRP. However, the total project cost reflected herein is consistent with the RRP, PAM and other documents at appraisal. Source: Asian Development Bank.

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Appendix 3 25

TableA3.2: Project Cost at Completion by Financier ($'000)

ADB

DFID SDC Government

Beneficiary Total Costa

Amount % of Cost Category

Amount % of Cost

Category Amount

% of Cost Category

Amount % of Cost Category

Amount % of Cost Category

Amount Taxes and

Duties

Item {A} {A/F} {B} {B/F} {C} {C/F} {D} {D/F} {E} {E/F} {F} {G}

A. Item 1

3. Civil Works 418 66.97 0 0.00 0 0.00 206 33.03 0 0.00 624 0

4. Equipment 130 53.83 23 9.49 0 0.00 88 36.68 0 0.00 241 0

5. PLCE Implementation 27,272 70.17 289 0.74 4,122 10.61 7,183 18.48 0 0.00 38,866 0

6. Policy, Plan, and PPP 1,861 26.51 49 0.69 238 3.38 4,873 69.41 0 0.00 7,020 0

7. Curriculum and Materials Development

644 84.80 0 0.00 115 15.20 0 0.00 0 0.00 759 0

8. Training & fellowship 640 84.18 0 0.04 120 15.78 0 0.00 0 0.00 761 0

9. Consulting Services 1,805 81.39 79 3.56 334 15.05 0 0.00 0 0.00 2,218 0

10. Recurrent expenditures

0 0.00 0 0.00 0 0.00 0 0.00 0 0.00 0 0

11. Taxes and duties 0 0.00 0 0.00 0 0.00 0 0.00 0 0.00 0 0

Subtotal (A) 32,770 64.91 440 0.87 4,929 9.76 12,350 24.46 0 0.00 50,489 0

B. Item 2

12. Contingency 0 0.00 0 0.00 0 0.00 0 0.00 0 0.00 0 0

13. Interest Charge 1,007 100 0 0.00 0 0.00 0 0.00 0 0.00 1,007 0

Subtotal (B) 1,007 100 0 0.00 0 0.00 0 0.00 0 0.00 1,007 0

Total Project Cost (A+B) 33,778 440 4,929 12,350 0 0.00 51,496 0

% Total Project Cost

65.60 0.85 9.57 23.98 100

Note: 1. Numbers may not sum precisely because of rounding. 2. Total SDC grant utilization is $5,027,479.04, which includes project expenditures $4,928,620.33, ADB grant admin fees $98,572.41 and Finance expenses $286.30. Source: Asian Development Bank.

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26 Appendix 4

CONTRACT AWARDS AND DISBURSEMENT OF ADB LOAN PROCEEDS

Table 4.1: Actual Annual and Cumulative Contract Awards of ADB Loan Proceeds

Annual Contract Awards Cumulative Contract Awards

Year Amount

($ million) % of Total Amount

($ million) % of Total

2002 0.00 0.00 0.00 0.00

2003 1.28 3.12 1.28 3.12

2004 0.00 0.00 1.28 3.12

2005 0.00 0.00 1.28 3.12

2006 0.39 0.95 1.67 4.07

2007 2.41 5.88 4.08 9.95

2008 1.43 3.49 5.51 13.44

2009 13.57 33.09 19.08 46.53

2010 8.05 19.63 27.13 66.15

2011 7.16 17.46 34.29 83.61

2012 4.90 11.95 39.19 95.56

2013 0.00 0.00 39.19 95.56

2014 0.34 0.83 39.53 96.39

2015 0.00 0.00 39.53 96.39

2016 1.07 2.61 40.60 99.00

2017 0.41 1.00 41.01 100.00

ADB = Asian Development Bank. Source: Asian Development Bank.

Table 4.2: Actual Annual and Cumulative Disbursement of ADB Loan Proceeds

Annual Disbursement Cumulative Disbursement

Year Amount

($ million) % of Total Amount

($ million) % of Total

2002 2.50 7.40 2.50 7.40

2003 0.25 0.74 2.75 8.14

2004 0.01 0.03 2.76 8.17

2005 (1.85) -5.48 0.91 2.69

2006 2.45 7.25 3.36 9.95

2007 0.03 0.09 3.39 10.04

2008 1.56 4.62 4.95 14.65

2009 5.60 16.58 10.55 31.23

2010 6.53 19.33 17.08 50.56

2011 7.52 22.26 24.60 72.82

2012 8.94 26.47 33.54 99.29

2013 0.21 0.62 33.75 99.91

2014 0.00 0.00 33.75 99.91

2015 0.00 0.00 33.75 99.91

2016 0.03 0.09 33.78 100.00

2017 0.00 0.00 33.78 100.00

ADB = Asian Development Bank. Source: Asian Development Bank.

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Appendix 4 27

Figure A4.1: Actual Contract Awards and Disbursement

Source: Asian Development Bank.

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28 Appendix 5

CHRONOLOGY OF MAIN EVENTS

Date Event

A. General 2001 13 Dec ADB loan approval 2002 17 Jan ADB loan signed 17 Apr MOU between ADB and DFID for a $12 million grant signed 29 Jun ADB loan declared effective 31 Aug–5 Sep Loan inception mission 2003 28 Mar–1 Apr ADB loan review mission 10–15 Sep ADB loan review mission 9 Nov ADB officially informed of the government’s decision to discontinue Directorate for

Non-Formal Education, the executing agency 11 Nov Fax from ADB to the government informing ADB’s withholding of concurrence on

any implementation steps pending resolution of discontinuation of the executing agency

2004 26 Apr Loan cancellation memo approved 3 May Suspension of the ADB loan and cofinancing grant declared by ADB 31 Aug Refunding of $2,293,817.30 ADB ADF loan and $447,394.32 DFID grant

requested by ADB 17–28 Oct Loan review mission 2005 24 Feb Project administration delegated to Bangladesh Resident Mission 27 Apr ADB informed of establishment of the Bureau of Non-Formal Education (BNFE)

and requested to lift the loan suspension 12–20 Jul Fact-finding mission phase 1 fielded for discussing the status of conditions for

lifting suspension 26 Sep Letter received by ADB confirming that the NFE Policy framework had been

approved by the Prime Minister 18–31 Oct Project reformulation mission fielded 2006 16 Jan Letter received by ADB confirming the government’s approval of the NFE Policy

framework 4 Apr Letter received from DFID confirming reduction of financing from $12 million to

only about $2 million equivalent 20 Jun Approval of major change in scope and implementation arrangements, and lifting

of suspension 20 Jun Loan suspension withdrawn by ADB 29 Nov Grant administration agreement between the Government of Switzerland and

ADB for $5 million signed 2007 Sep NFE Policy framework disseminated by the government to NGOs 13 Nov Amendment to the MOU between ADB and DFID signed to reduce the grant to $2

million 2008 12 Feb Extension of the ADB loan closing date by 2.5 years from 31 Dec 2008 to 30 Jun

2011 approved by ADB 3–5 Jun ADB and SDC joint loan review mission 11–19 Nov ADB and SDC joint loan review mission 2009 Mar Commencement of functioning of the national professional body for PLCE 1–9 Jun ADB and SDC joint loan review mission 20–29 Oct ADB and SDC joint loan review mission 2010 21–31 Mar ADB and SDC joint loan review mission 6 Apr Extension of the ADB loan closing date to 30 Jun 2013 approved by ADB 25 Apr Approval of NFE Policy framework implementation action plan by the government 12 Oct–4Nov ADB and SDC joint loan review mission 2011 6–13 Feb ADB and SDC joint loan review mission

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Appendix 5 29

Date Event 9–25 Oct ADB and SDC joint midterm review mission 2014 11 Aug ADB special loan review Mission 9 Dec Extension of the ADB loan closing date to 31 Dec 2014 and increase in financing

percentages for the SDC grant approved by ADB 2015 29 Jul Extension of the loan and grant winding-up period to 31 Dec 2015 approved by

ADB 2017 22 May Extension of the loan and grant winding-up period to 30 Jun 2017 approved by

ADB B. Consulting Service Recruitment B1. Firm contract for project administration services (quality-based selection) 2002 22 May Letter requesting that ADB short-list and evaluate technical and financial

proposals received by ADB 5 Jul Letter requesting no objection to the short-listed firms sent by ADB to the

government 18 Jul No objection received by ADB 26 Jul Invitation for proposals dispatched to the short-listed firms 9 Sep Deadline for submitting technical proposals 15 Nov Letter issued by ADB advising that the first-ranked firm was on the sanctions list

and that the government might decide to negotiate a contract with the second-ranked firm

25 Nov Letter informing ADB of the government’s decision to negotiate with the second-ranked firm

30 Dec Letter requesting ADB approval of the negotiated contract received by ADB 2003 8 Jan Comments on the negotiated contract issued 16 Jan Revised contract submitted to ADB 20 Jan Approval of the revised contract issued by ADB B2. Firm contract for curriculum development and program implementation (quality- and cost-based selection) 2008 1 Jun Business opportunity advertised 2009 19 Feb Short-listing of the consulting firms and issuance of the request for proposals

approved by ADB 5 Apr Request for proposals issued 20 May Deadline for bid submission 15 Sep Letter to ADB requesting concurrence on the revised technical evaluation report 6 Oct Response from ADB advising ineligibility of one firm and approving financial

evaluation of the remaining two firms 9 Nov Financial evaluation and final ranking report received by ADB 17 Dec No objection issued by ADB 2010 20 Jan Letter and the negotiated contract seeking ADB’s approval received by ADB 28 Jan Conditional approval issued by ADB 1 Apr Date of the contract B3. Recruiting five monitoring partner agencies in five divisions (fixed-budget selection) 2007 9 Jul Business opportunity advertised 30 Aug Deadline for submission of expression of interest 2008 25 Feb Business opportunity re-advertised 15 May Letter requesting concurrence on the short-listing received by ADB 19 May No objection to the short-listing issued by ADB 17 Jul Request for proposals issued to the short-listed firms 25 Aug Deadline for bid submission 30 Sep Submission of the technical evaluation report received by ADB 8 Oct Comments on the technical evaluation report provided by ADB

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30 Appendix 5

Date Event 12 Oct Revised technical evaluation report submitted 13 Nov Letter requesting clarification of the technical evaluation sent by ADB 18 Nov Revised technical evaluation report submitted 15 Dec No objection to the revised technical evaluation report issued by ADB 2009 4 Jan Report on financial evaluation and final ranking received by ADB 22 Jan No objection to the financial evaluation and final ranking issued by ADB 1 Feb Letter to ADB requesting approval of five draft negotiated contracts 23 Feb Supplementary documents submitted to ADB 1 Mar No objection to the five draft contracts issued by ADB 2010 5 Aug Request for extending the contracts by 1 year from July 2010 to Jun 2011

received by ADB 12 Aug Approval of the contract extension issued by ADB B4. Recruiting consulting firm for capacity building (quality- and cost-based selection) 2008 20 May Business opportunity advertised 28 Oct Request to ADB for concurrence on the short-listing and draft request for

proposal 2009 19 Feb No objection to the short-listing and request for proposals issued by ADB 15 Apr Request for proposals issued 31 Jun Deadline for bid submission 16 Sep Technical evaluation report received by ADB 17 Nov Resubmission of the technical evaluation report to ADB 23 Dec Conditional no objection issued by ADB 2010 13 Jan Submission of the report on financial evaluation and final ranking to ADB 18 Mar No objection to the financial and ranking results issued by ADB 31 Mar Request to ADB for approving the draft negotiated contract 11 Apr Conditional no objection issued by ADB 25 May Date of the contract B5. Recruiting six implementing nongovernment organizations for 6 districts (phase 1)18 2008 14 Jan Contracts with five implementing NGOs signed 25 Mar Contract with one implementing NGO signed 2009 12 May Letter to ADB requesting approval of five draft negotiated renewal contracts 25 May No objection issued by ADB B6. Recruiting 11 implementing nongovernment organizations for program implementation in 12 districts (phase 2, fixed-budget selection) 2007 10 May Business opportunity advertised 21 Jun Deadline for submission of expression of interest 2008 11 May Letter requesting approval of short-listing and draft request for proposals

received by ADB 26 Jun Conditional approval issued by ADB 20 Aug Letter requesting approval of the revised short-listing of 47 implementing

NGOs received by ADB 21 Oct No objection to short-listing 24 NGOs for five districts issued by ADB 23 Oct No objection to short-listing 16 NGOs for six districts issued by ADB 2009 23 Feb Letter requesting approval of the revised technical evaluation report

received by ADB 24 Mar No objection to the technical evaluation results issued by ADB 7 Apr Report on financial evaluation and final ranking received by ADB 13 May No objection to the evaluation results and final ranking issued by ADB 27 May Letter to ADB requesting approval of the draft negotiated contracts 1 Jun No objection to the draft negotiated contracts issued by ADB 10 Jun Receipt of the 10 signed contracts by ADB

18 Based on the available records.

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Appendix 5 31

Date Event B7. Recruiting 11 implementing nongovernment organizations for program implementation in 11 districts (phase 3, fixed-budget selection) 2008 28 Feb Business opportunity advertised 2 Mar Business opportunity advertised 23 Sep Date of letter requesting ADB’s approval of the revised short-listing 13 Nov No objection to short-listing 49 INGOs issued by ADB 2009 23 Feb Letter requesting approval of the revised technical evaluation report

received by ADB 31 Mar No objection to the technical evaluation results issued by ADB 6 Apr Report on the financial evaluation and final ranking submitted 13 May No objection to the evaluation results and final ranking issued by ADB 28 May Letter to ADB requesting approval of the draft negotiated contracts 1 Jun No objection to the draft negotiated contracts issued by ADB 10 Jun Receipt of the 10 signed contracts by ADB B8. Recruiting one implementing nongovernment organization for phase 2 program implementation (Sylhet District) (fixed-budget selection) 2008 16–18 Nov Business opportunity advertised 2009 19 Jan Letter to ADB requesting approval of short-listing six implementing NGOs

and the request for proposals 16 Mar No objection to the short-listing and conditional approval of the request for

proposals issued by ADB 21 Jun Technical evaluation report received by ADB 23 Jul Comments on the technical evaluation report provided by ADB 7 Sep Letter to ADB requesting approval of the technical evaluation report 14 Oct Comments on the technical evaluation report provided by ADB 14 Sep Letter to ADB requesting approval of the revised technical evaluation report 9 Nov No objection to the technical evaluation results issued by ADB 19 Nov Report on the financial evaluation and final ranking submitted to ADB 17 Dec No objection to the financial evaluation results and final ranking issued by

ADB 2010 11 Jan Receipt of letter requesting approval of the negotiated contract by ADB 19 Jan Conditional approval of the negotiated contract issued by ADB 4 Apr Date of the contract 6 Apr Signed contract received by ADB B9. Recruiting implementing nongovernment organizations for Moulvibazar (phase 1), Jhenaidah (phase 2), and Tangail (phase 3) districts (full technical proposal) 2009 31 Oct Business opportunities advertised for Moulvibazar and Jhenaidah districts 10 Dec Business opportunity advertised for Tangail district 2010 10 Feb Request for approving the short-listing for Moulvibazar and Jhenaidah

districts received by ADB 24 Feb Request for approving the short-listing for Tangail district received by ADB 2 Mar Submission of additional documents requested by ADB 3 Mar Requested documents submitted to ADB 24 Mar Letter from ADB requesting use of the updated request for proposal,

correction of inconsistencies in scoring methodology, and clarification of ambiguity in selecting the short-listed implementing NGO specifically for Jhenaidah district

13 May Approval of the short-listing issued by ADB 8 Sep Submission of the technical evaluation report to ADB 26 Sep Reevaluation of the technical proposals requested by ADB 27 Sep Revised evaluation report on the technical proposals received by ADB

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32 Appendix 5

Date Event 10 Oct Approval of the revised evaluation report on the technical proposals issued

by ADB 20 Oct Submission of the report on financial evaluation and final ranking to ADB 7 Nov Comments on the report on financial evaluation and final ranking provided

by ADB 19 Dec Approval of the financial evaluation and final ranking for Jhenaidah and

Tangail districts issued by ADB 23 Dec Approval of the financial evaluation and final ranking for Moulvibazar district

issued by ADB 2011 12 Jan Submission of the negotiated contracts for Tangail and Moulvibazar districts

and a representation letter on selection of the implementing NGO for Tangail district received by ADB

23 Jan Approval of the negotiated contract for Moulvibazar district issued by ADB 8 Mar Approval of the negotiated contract for Tangail district issued by ADB 5 Jul Contract for Tangail district submitted to ADB 25 Aug Submission of the negotiated contract for Jhenaidah district to ADB 4 Sep Negotiated contract for Jhenaidah district approved by ADB B10. Recruiting services for establishing management information system database (single-source selection, biodata technical proposal) 2007 4 Nov Receipt of the draft request for proposals for approval by ADB 18 Nov Draft request for proposals approved by ADB 2008 30 Jan Request for approval of the draft MOU between the executing agency and

consultant to ADB 14 Feb Submission of curriculum vitae of proposed experts, personnel schedule,

work plan, and cost for the assignment requested by ADB 24 Mar Submission of the requested documents received by ADB 3 Apr Confirmation of technical suitability of LGED requested by ADB 15 May Request for approving the draft MOU based on reevaluation received by

ADB 24 Jul Letter advising ineligibility of LGED for the proposed services sent by ADB 29 Jul Draft MOU with LGED approved by ADB 8 Oct Date of MOU signing 2012 19 Jan Extension of the contract from 30 Jun 2011 to 30 Jun 2013 with the reduced

contract amount ADB = Asian Development Bank, ADF = Asian Development Fund, DFID = Department for International Development of the United Kingdom, LGED = Local Government Engineering Department, MOU = memorandum of understanding, NFE = nonformal education, NGO = nongovernment organization, PLCE = post literacy and continuing education. Source: Asian Development Bank.

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Appendix 6 33

ORGANIZATION STRUCTURE FOR PROJECT IMPLEMENTATION

BNFE = Bureau of Non-Formal Education, DCO = district coordination officer, LGED = Local Government Engineering Department, MIS = management information system, MOPA = monitoring partner agency, MOPME = Ministry of Primary and Mass Education, NFE = nonformal education, NFE-RC= nonformal education resource center, NGOO = nongovernment organization, PAS = project administration service, PCC = project coordinating committee, PIMU = project implementation management unit, TSSU = technical system support unit. Source: Asian Development Bank.

Annual Planning Workshop

National Task Force for Curriculum

Development and Training of Trainers

Half-yearly District NFE Committee

Twice-monthly Subdistrict NFE

Committee

Center Management Committee

Community Learning Center

BNFE (Executing Agency)

DCO MOPA Consultants

1 District Monitoring Associate

1 Program Coordinator

Implementing NGOs

3 Program Supervisors

PCC

MOPME NFE -RC M I S

M I S

PAS PIMU

M I S

Implementing NGO

TSSU

Administration

and Finance

2 Facilitators

Resource person

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34 Appendix 7

CONTRACTS FINANCED BY THE ASIAN DEVELOPMENT BANK

CDPI=Curriculum Development and Program Implementation, BME= Business machines and equipment, BNFE = Bureau of Non-Formal Education, LGED= Local Government Engineer Department, INGO= Implementation NGO, MIS=Management Information System, PAS = project administration service, PCSS=Procurement contract summary sheet, PLCE=Post Literacy Continuing Education,PIMU = project implementation management unit, PLCEHD=post literacy and continuing education, RC=Regional Coordinator, WA=Withdrawal Application. Source: Asian Development Bank

PCSS No. Contract Description Contract Date Consultants Contract Value

(USD) ADB Financing

(USD)

A. Consulting Services 0063 Individual Consultant – RC Coordinator 01-Apr-10 Arijit Kumar Roy 87,059 0 0006 Individual Consultant-PAS Financial Specialist 24-Oct-07 Prof. Dr. Md. Kayemuddin 11,690 9,486 0007 Individual Consultant-PAS Procurement Specialist (National) 23-Oct-07 Mohammed Fazle Shahid 12,416 10,119 0008 Individual Consultant- BNFE Policy Specialist (National) 24-Oct-07 Abu Ahmed Arif 23,949 20,870 0009 Individual Consultant-PAS Team Coordinator Cum Financial

and Procurement Specialist (International) 24-Oct-07 Tariqul Kabir 25,883 25,861

0010 Individual Consultant- BNFE RC Coordinator (National) 23-Oct-07 Prof. Dr. M A Wahab Mian 21,288 18,551 0025 Deployment of MIS Specialist 18-Mar-09 Md. Shamsul Alam 52,686 42,143 0120 Deployment of MIS Specialist 18-Mar-09 Md. Shamsul Alam 38,364 0 0001 Project Administration Services (PAS) 09-Mar-03 Colleges and Institutes

Canada 860,636 376,715

0057 Consultancy for Overseas Training and Study Tour 10-Jan-10 Association of University and College of Canada

234,218 234,218

0061 Consulting Service for CDPI 01-Apr-10 Colleges and Institutes Canada

790,265 534,134

0105 Consulting Services for Third Party Financial Audit 28-Mar-10 Saha Mazumder Co. Consortium

52,039 27,454

PLCE implementation (total 32 INGOs and LGED)

30,280,773 25,687,615

Monitoring Partner Agencies (total 5)

1,201,648 868,370

Subtotal 33,692,914 27,855,536

B. Civil Works

0003 Vertical Extension of BNFE Headquarters 12-Dec-03 O.K. Enterprise (PVT) Ltd 380,376 297,875 0005 Vehicles, Computers, Photocopier, Furniture, Recurrent

Expenses, BME, Training, and Consulting 01-Oct-04 Various 80,204 80,204

0133 Withdrawal Application No. A0096, A0097, A0098 01-Nov-17 Various 39,489 39,489

Subtotal 500,069 417,568

C. Equipment

0002 Mitsubishi Pajero Car- For PIMU 06-Mar-03 Progoti Rent -A-Car 22,327 22,327 0004 Various - Withdrawal Application No. A0002 and D0002 11-Nov-03 Ministry of Primary and

Mass Education 7,739 7,412

0005 Vehicles, Computers, Photocopier, Furniture, Recurrent Expenses, BME, Training, and Consulting

01-Jan-04 Various 99,651 99,651

0133 Withdrawal Application No. A0096, A0097, A0098 11-Jan-17 Various 397 397 Subtotal 130,114 129,787

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Appendix 8 35

GENDER ACTION PLAN ACHIEVEMENTS 1. Main gender-related results of the project. The project supported increased literacy skills, social awareness, and income-generation capacity of disadvantaged men and women. It had a total enrollment of 1.2 million people, including approximately 600,000 women and girls. As of March 2013, 1,103,165 learners had graduated, including 552,828 (50%) women. Of the 16 different types of trades under the project, training courses for 10 trades (or 62.5%) were developed in a gender-responsive manner, i.e., the course design considered women’s needs, interests, and potential for income generation. Of the total women graduates, 260,797 (47%) were engaged in income generation at project completion. In terms of occupation of the graduates, statistics reveal that involvement in tailoring trade increased to 51.54% from 0.22% with more females than males choosing tailoring. The average purchasing capacity of the graduates increased from Tk8,000 to Tk11,000. The project had facilitated increased mobility and social networking of women and girls living in remote areas. The mobility of women had increased in 29 project districts since they started attending literacy and skills training classes. The learning centers had offered women learners life skills and knowledge about their own communities, available resources and agencies, income opportunities, local markets, and service providers. The position of women graduates had been upgraded in their families as they could support economically. Their opinions and decisions were valued by the male members in families in terms of savings, procurement of household items and assets, children’s education, marriage of children, and family planning. The Gender Action Plan results are in Table A8. 2. Evidence of project outcomes on women. The project’s overall goal of increased literacy skills, social awareness, and income-generation capacity of disadvantaged people translated into positive benefits for women and had the ripple effect of improving women’s lives and participation in decision-making at the household, community, and local government levels. For example, a woman graduate became an earning member of the family and could allocate resources to address critical needs of children and other female family members. Women graduates became more active in local governance structures and systems and could advocate for better service delivery and an improved community environment. As one woman from Kurigram, Rajshahi mentioned during the focus group discussion, “…even before the training on making nakshi kathas (traditional blankets), I was stitching and selling the nakshi kathas, as is tradition. But with the training, I have learnt the tricks of refining my stitching style, and I can make many intricate designs that are more attractive. With the training, I can do more nakshi kathas in a week and the quality is better and it sells at better prices in the markets. This has helped me to earn more money and spend more on my children. I am now thinking of marketing my goods in the big bazaar in the district.” Beyond the home, women graduates now actively involve themselves in community matters. Women graduates in Patuakhali, Barisal now actively participate in ward-level meetings to discuss specific issues related to them and to place their demands to the pourashava (municipal town) chairman and mayor. The women graduates from the area have been actively engaging with the female ward commissioners at the pourashava level to repair the main road through the village that leads to the primary school in the area. They hope to have regular budget allocation to take up the necessary construction work. When asked about improved health and hygiene, women at the focus group discussion in Bagerhat, Khulna stated that they now have greater access to health care services simply because they now know where to go and what to ask for at the subdistrict health complex. Women now actively seek out community health workers to ensure their children and newborns receive all the government vaccines. Before, even when community health workers came door-to-door requesting they vaccinate their children, the local women turned these health workers away because of superstition and fear of the unknown. Now women feel and act more empowered because of their direct and indirect participation in the project.

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36 Appendix 8

Table A8: Gender Action Plan Achievements Matrixa

GAP Activities Progress Status as of 2013 Status

Policy framework development

(1) The Project’s Social Development consultant will assist Project Implementation Management Unit (PIMU) to implement and monitor Gender Strategy and Action Plan (GAP) implementation

1. Social Development consultant hired intermittently and developed a Gender Strategy and Action Plan for Bureau of Non-Formal Education (BNFE).

2. Gender awareness workshops conducted for 200 participants (mid-level GOB officials involved in the project) in 7 batches, for a total of 1,400 participants.

3. Women’s involvement and gender equity features incorporated in BNFE incl. targets for: (a) recruitment of women at facilitator level (50%); and (b) vulnerable women as beneficiaries.

4. Project Implementation Management Unit (PIMU)’s directives issued having at least 50% women as facilitators and learners, and 33% of women’s representation in Center Management Committees (CMCs).

Completed

Development, dissemination, and adoption of curricula for post-literacy and continuing education programs

(2) PRA training conducted, and women involved in course selection, evaluation and learners’ satisfaction

5. Considering the large sample size during baseline survey [3,624,844 households with 1,937,024 (53.44%) males and 1,687,820 (46.56%) females] and the extent of women’s inputs provided in subsequent meetings to inform the structure and content of the courses, PRA was not conducted

Completed

(3) Ensure women’s involvement in course evaluation (relevance and learners’ satisfaction)

6. Evaluation of course relevance and learners’ satisfaction conducted during project implementation and -in particular- in June-August 2012 involving a group of learners 242 out of 456 (53.29%) were women

Completed

Capacity building of involved organization

(4) Of the 14,362 teachers/facilitators to be trained under the Project, 50 % to be women

7. 7,183 (52.7%) women teacher/facilitators trained on quality teaching methods, capacity building training and refresher training.

Completed

Target achieved

Implementing PLCE programs

(5) Curriculum and course organization will take account of women’s pressures regarding time

8. Group of learners consulted where about 53% were women to ensure women’s opinions considered in course organization and curriculum and class timings to ensure women could attend after completing household responsibilities at home and with children.

Completed

(6) Test self-learning and peer group learning for catching up with missed classes

9. Special classes arranged, and good performing learners worked as resource persons to ensure catching up of the missed classes by women learners in all 7,147 continued education centers.

Completed

(7) Encourage informal childcare to help mothers to attend courses and provide a means of generating small income for community members

10. Organizing informal childcare in CECs encouraged but other arrangements prevailed with other family members taking care of small children when women attended courses in CECs.

Completed

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Appendix 8 37

GAP Activities Progress Status as of 2013 Status

(8) Course locations will be at the convenience of women, considering their restricted mobility.

11. Directive issued by BNFE effectively implemented whereby all course locations were selected within 1 to 1.5 kilometers from the homes of women trainees

Completed

(9) Gender awareness training will be provided for PIMU and relevant partner agencies

12. One workshop conducted at central level in October 2010 during the preparation of the BNFE Gender Strategy and Action Plan for PIMU staff.

13. Gender awareness, GAP orientation and GAP monitoring orientation conducted in three batches for PIMU and staff of partners’ agencies

Completed

(10) Build capacity of female and male CMC members

14. Orientation workshops targeting CMC members on gender equality issues conducted in all the 7,147 centers before launching project activities in the field. (Total members 64,323, Male: 42,882, Female: 21,882)

Completed

(11) Continue promotional and awareness campaigns to sensitize BNFE staff and its affiliates on importance and benefits of having gender equality in workplace, projects and programs

15. Different events organized on national and international days, including International Women’s Day, International Literacy Day, and rallies (estimated 2-3 rallies) to uphold women’s participation and empowerment and focus on the importance of women’s education and skills development.

Completed

(12) Awareness raising and mobilization program to motivate community for more effective involvement of women

16. Awareness messages about primary health and hygiene, prevention of early marriage, dowry, violence against women, eve teasing, and women’s rights discussed at community level in 29 districts. Also, motivation of the community for more effective involvement of women in CMCs ensured.

Completed

(13) CMC membership criteria to ensure at least 33% women in CMCs by 2014

17. 3 out of 9 members (33.3%) of all 7,147 CMCs in the project’s learning centers are women (estimated: 21,441).

Completed

Target achieved

(14) Involve women in village profiling in the preparation phase

18. Baseline surveys in 209 sub-districts (upazilas) conducted involved women of families having members of the targeted learners age 11-45

Completed

(15) Separate needs assessments with men and women to identify non-traditional and gender-friendly income generating activities and training

19. During baseline study where 3,624,844 households with 1,937,024 (53.44%) males and 1,687,820 (46.56%) females were surveyed trade selection were identified and results show that nursery, vegetables, fruits and flower cultivation, bamboo, cane, bee keeping, and beauty parlor were women’s preferred trades.

Completed

(16) Community orientations in more remote and traditional villages

20. The project focused on remote and char areas while operating coverage in 29 districts (zila). Community orientation topics included information about their community, income opportunities, information on available resources and agencies, local markets and service providers in the community.

Completed

(17) Age-group related needs will be considered in the course content, organization, and timing.

21. The project is operating PLCE program covering school dropouts and neo-literates of 11 to 45 age groups were considered. Emphasis was given on the needs expressed by males/females within the 15-24 age group as they are the potential workforce or entrepreneurs.

Completed

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38 Appendix 8

BNFE = Bureau of Non-Formal Education, CMC = center management committee, GAP = gender action plan, NFE = nonformal education, PIMU = project implementation management unit, PLCE = post literacy and continuing education, PRA=participatory rural appraisal a The GAP Matrix herewith presented was prepared based on information included in the (original) Gender Analysis and Strategies, prepared during project design in the year 2000, based on a broad range of mostly qualitative indicators, with lack of clear definitions (e.g. what constituted -at the time- non-traditional trades or skills) nor credible baseline data with which to assess the gender equality results. Sources: Ministry of Primary and Mass Education and Asian Development Bank.

GAP Activities Progress Status as of 2013 Status

(18) Gender audits for curriculum materials and training

22. Though a formal audit was not conducted the intended purpose of the audit was made an inherent part of the design of the NFE curriculum that considered and effectively reflected in the training materials: (a) women’s time pressure; and (b) the need to address women’s specific needs, interests, and potential income-generating activities. As an important guideline for preparing requisite textbooks and materials, the NFE curriculum ensured that the contents and illustrations in all materials were gender responsive and did not perpetuate gender stereotypes.

Completed

(19) At least 50% of courses developed will relate to women’s needs, interests, and their potential income-generating activities

23. Out of eighteen (18) trades (e.g. (a) Tailoring; (b) Embroidery and Block boutique, (c) Tie-dye & Screen print; (d) Fish Culture; (e) Mushroom, Silk & Maize cultivation; (f) Nursery, Vegetables, Fruits and Flower cultivation; (g) Livestock; (h) Food processing; (i) Soap & Candle making; (j) Beauty parlor (10 trades), 55% of trades were of interest to women and corresponding courses were developed.

Completed

Target Achieved

(20) A minimum enrolment rate of at least 50% women in PLCE of the targeted 1.2 million beneficiaries

24. Enrollment: Female-600,000 (50.0%) and male-600,000 (50.0%); 25. Graduate: Female-552,828 (92.14%) and male-550,336 (91.72%); 26. Dropped out: 59,260 (4.94%) - Female-28,585 (4.76%) and male-30,675

(5.11%).

Completed

Target Achieved

(21) A gender-based learner satisfaction survey to be conducted prior to midterm review

27. A study was conducted by the Project to assess a gender-based learner satisfaction [in July 2011.

Completed

(22) 50% of third party district monitoring associates will be women

28. Third Party Monitoring was mostly led by the LGED and five firms in six divisions. No information available on the percentage of women’s involvement in third party district monitoring firms

Completed

Target partly achieved

(23) Ensure sex-disaggregated data collection and the regular monitoring with attention to gender issues.

29. Sex disaggregated data through the GAP reporting were provided on a quarterly basis through the existing project monitoring system.

Completed

(24) 20% of female learners to have selected courses in non-traditional skills.

30. Refer to footnote a

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Appendix 9 39

STATUS OF COMPLIANCE WITH LOAN COVENANTS

Covenants Reference in

Loan Agreement Status of Compliance

Sector

1. BNFE will ensure that the selection of learners, courses, training sites, participating communities, and partner agencies, is in accordance with criteria agreed upon by BNFE, ADB and SDC.

LA, Schedule 6, para.16

Complied with.

2. BNFE shall take all necessary and appropriate measures to ensure a high participation of female learners in PLCE activities. This will have a total of at least 50% female learners under the Project.

LA, Schedule 6, para.17

Complied with. Female learners accounted for about 50%.

3. Criteria for the selection of training sites shall include at least the following (i) accessibility and safety, particularly for female learners; (ii) availability of toilets; (iii) availability of drinking water; (iv) appropriate lighting for courses at evening time; and (v) safety measures regarding the use to tools. BNFE shall ensure that for each facility to be rented as a training site, an appropriate rental plan shall be in place.

LA, Schedule 6, para.18

Complied with.

4. To ensure a high-quality PLCE program, BNFE shall use a phased approach for the implementation of the PLCE program. In the initial phase of the Project, Project activities shall be limited to 12 upazilas, which shall be selected on the basis of diverse literacy rates, size, and density of population, accessibility and infrastructure.

LA, Schedule 6, para.19

Complied with. PLCE implemented in 3 phases and in 31 upazilas (subdistricts) for phase 1.

5. In the following years, the expansion of the Project to all the 210 identified upazilas shall include both upazilas which have only recently finished basic literacy programs, as well as upazilas where basic literacy courses finished more than 2 years before the commencement of the Project

LA, Schedule 6, para.19

Complied with.

6. The procedure used for the selection for Partner Agencies shall be the existing subvention system of BNFE, with the following modifications: (i) interested Partner Agencies shall be invited for prequalification; and (ii) prequalified Partner Agencies shall need to present action plans. Assessment criteria for Partner Agencies and their action plans shall be agreed upon between the Bank, BNFE and SDC and shall include capabilities, resources, and geographical presence of Partner Agencies. The selection shall be made at central level. BNFE shall inform all candidates about the results and shall publish the

LA, Schedule 6, para.20

Complied with. Selection of the MOPAs followed ADB’s fixed-budget selection procedure.

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40 Appendix 9

Covenants Reference in

Loan Agreement Status of Compliance

results on the Project’s Internet web page. For NGOs, preference shall be given to those originating from the locality where the training is to be provided and to those that include female trainers for those programs that are aimed at female learners.

7. DCOs shall monitor performance of Partner Agencies using the selection criteria above.

LA, Schedule 6, para.21

Complied with.

8. PIMU shall seek the no-objection of the Bank before contracting Partner Agencies and shall, to the extent, submit to the Bank for review the evaluation report.

LA, Schedule 6, para.22

Complied with.

9. BNFE shall ensure that each selected Partner Agency will use accounting formats and systems as proposed by the PAS of the PIMU.

LA, Schedule 6, para.23

Complied with.

Environmental

10. The Borrower shall ensure that the extensions of the BNFE facilities under the Project will follow the Government’s environmental requirements, the Bank’s environmental guidelines for Selected Infrastructure Development Projects, and other relevant guidelines on environment.

LA, Schedule 6, para.30

Complied with.

11. The Borrower shall ensure that the vertical construction to be constructed at the BNFE HQ shall have appropriate facilities for women, including women’s bathrooms. Before commencement of the construction works, the Borrower shall have installed in the existing buildings at least two additional main telephone line allowing telephone access for all offices of directors and deputy directors. The Borrower shall ensure that office conditions of the extensions will allow the unrestricted use of computers.

LA, Schedule 6, para.24

Complied with.

12. Before commencement of the construction work, the Borrower shall prepare, and submit to the Bank for its approval, a maintenance plan for the BNFE HQ building. The Borrower shall make sufficient funds available for maintenance costs.

LA, Schedule 6, para.25

Complied with. Before commencement of the construction works, a maintenance plan was sent to ADB for approval. This maintenance cost was also reflected in the appropriate documents of the government.

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Appendix 9 41

Covenants Reference in

Loan Agreement Status of Compliance

Social

13. BNFE will take all appropriate and necessary measures to ensure an overall female enrollment of at least 50% in its continuing education programs.

LA, Schedule 6, para.17

Complied with.

14. Within 18 months of loan effectiveness, MOPME and BNFE will issue instructions and guidelines encouraging local community involvement in planning, testing, and decision making regarding PLCE programs.

LA, Schedule 6, para.19

Complied with. Late compliance due to loan suspension. Necessary instructions and guidelines in this respect were issued in April 2008.

15. BNFE shall ensure that female staffs are encouraged to apply for in-service training. When candidates have equal and comparable experience and qualifications, female candidates shall be given preference.

LA, Schedule 6, para.14

Complied with.

Financial

16. The Borrower shall establish immediately after the effective date, an imprest account in US dollars at a commercial bank acceptable to the Borrower and the Bank.

LA, Schedule 3, para.8(a)

Complied with.

17. The Government will provide adequate budget allocation to BNFE to meet the counterpart funds requirement for each fiscal year during project implementation and will provide ADB with information on actual allocations given to the sub sector within three months of the close of each fiscal year.

LA, Schedule 6, para.11

Complied with. There was no counterpart fund issue.

18. At the end of the year 2 of project implementation, MOPME will present an action plan based on the draft policy framework, which will include (i) a long-term financial plan for PLCE, showing adequate funding of all recurrent costs for the sub-sector until the year 2010; (ii) guidelines for cost sharing in PLCE, taking into account community in-kind contributions; and (iii) a review of the issue of including school dropouts in PLCE programs.

LA, Schedule 6, para.12

Complied with. Late compliance due to loan suspension. Action plan submitted to ADB in February 2009 and approved by the government in April 2010.

19. The Borrower shall maintain, or cause to be maintained, records and accounts adequate to identify the goods and services and other items of expenditure financed out of the proceeds of the Loan, to disclose the use thereof in the Project, to record the progress of the Project( including the cost thereof) and to reflect, in accordance with

LA, Section 4.06 (a) Complied with.

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consistently maintained sound accounting principles, the operations and financial conditions of the agencies of the Borrower responsible for the carrying out of the Project and operation of the Project facilities, or any part thereof.

20. The Borrower shall(i) maintain, or cause to be maintained, separate accounts for the Project;(ii) have such accounts and related financial statements audited annually, in accordance with appropriate auditing standards consistently applied, by independent auditors whose qualifications, experience and terms of reference are acceptable to the Bank;(iii) furnish to the Bank, as soon as available but in any event not later than twelve month after the end of each related fiscal year, certified copies of such audited accounts and financial statements and the report of the auditors relating there to (including the auditors’ opinion on the use of the Loan proceeds and compliance with the covenants of this Loan Agreement as well as on the use of the procedures for imprest account/statement of expenditures),all in the English language; and of expenditures), all in the English language; and (iv) furnish to the Bank such other information concerning such accounts and financial statements and the audit thereof as the Bank shall from time to time reasonably request.

LA, Section 4.06 (b) Complied with. Audit reports for 2009 to 2013 were submitted in a timely manner. The last audit report was unqualified. There were 65 audit findings in total, with 64 already settled. The remaining one is being settled and is not relevant to ADB’s funding.

21. The Borrower shall enable the Bank, upon the Bank's request, to discuss the Borrower's financial statements for the Project and its financial affairs related to the Project from time to time with the Borrower's auditors, and shall authorize and require any representative of such auditors to participate in any such discussions requested by the Bank, provided that any such discussion shall be conducted only in the presence of an authorized officer of the Borrower unless the Borrower shall otherwise agree.

LA, Section 4.06 (c) Complied with. Audit findings were discussed and 98% of the findings were settled.

22. The Borrower shall furnish, or cause to be furnished, to the Bank all such reports and information as the Bank shall reasonably request concerning (i) the Loan, and the expenditure of the proceeds and maintenance of the service thereof; (ii) the goods and services and other items of expenditure financed out of the proceeds of the Loan; (iii) the Project; (iv) the administration, operations and financial condition of the agencies of the Borrower responsible for the carrying out of

LA, Section 4.07 (a) Complied with.

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Appendix 9 43

Covenants Reference in

Loan Agreement Status of Compliance

the Project and operation of the Project facilities, or any part thereof; (v) financial and economic conditions in the territory of the Borrower and the international balance-of-payments position of the Borrower; and (vi) any other matters relating to the purposes of the Loan.

23. Without limiting the generality of the foregoing, the Borrower shall furnish, or cause to be furnished, to the Bank semi-annual reports on the carrying out of the Project and on the operation and management of the Project facilities. Such reports shall be submitted in such form and in such detail and within such a period as the Bank shall reasonably request, and shall indicate, among other things, progress made, and problems encountered during the six months’ period under review, steps taken or proposed to be taken to remedy these problems, and proposed program of activities and expected progress during

the following six months.

LA, Section 4.07 (b) Complied with. Monthly, quarterly, and annual project progress reports were submitted.

24. Promptly after physical completion of the Project, but in any event not later than three (3) months thereafter or such later date as may be agreed for this purpose between the Borrower and the Bank, the Borrower shall prepare and furnish to the Bank a report, in such form and in such detail as the Bank shall reasonably request, on the execution and initial operation of the Project, including its cost, the performance by the Borrower of its -obligations under this Loan Agreement and the accomplishment of the purposes of the Loan.

LA, Section 4.07 (c) Complied with. A project completion report was submitted.

25. The Borrower shall enable the Bank's representatives to inspect the Project, the goods financed out of the proceeds of the Loan, and any relevant records and documents.

LA, Section 4.08 Complied with. ADB missions were fielded regularly.

26. (a) It is the mutual intention of the Borrower and the Bank that no other external debt owed a creditor other than the Bank shall have any priority over the Loan by way of a lien on the assets of the Borrower. To that end, the Borrower undertakes (i) that, except as the Bank may otherwise agree, if any lien shall be created on any assets of the Borrower as security for any external debt, such lien will ipso facto equally and ratably secure the payment of the principal of, and interest charge and any other charge on, the Loan; and (ii) that the Borrower, in creating or permitting the creation of

Complied with.

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44 Appendix 9

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any such lien, will make express provision to that effect.

(b) The provisions of paragraph (a) of this Section shall not apply to (i) any lien created on property, at the time of purchase thereof, solely as security for payment of the purchase price of such property; or (ii) any lien arising in the ordinary course of banking transactions and securing a debt maturing not more than one year after its date.

(c) The term "assets of the Borrower" as used in paragraph (a) of this Section includes assets of any political subdivision or any agency of the Borrower and assets of any agency of any such political subdivision, including the Bangladesh Bank and any other institution performing the functions of a central bank for the Borrower.

Others

27. Established, Staffed, and Operating PIMU/PIU

The DNFE, as Executing Agency for the Project, shall bear the overall responsibility for timely implementation of the Project. Project management structures, responsibilities and activities, shall, to the extent possible, be integrated with BNFE’s regular administrative set-up, responsibilities and activities.

The PIMU, established within DNFE and headed by the Project Director, shall be responsible for (i) day-to-day implementation of the Project; (ii) coordination of Project activities among the different departments within BNFE and with DNFE field staff; (iii) monitoring of progress under the Project; and (iv) preparation of annual Plan of Operation and progress reports.

Within one month of loan effectiveness, key staff in the PIMU, including three deputy directors and six assistant directors, will be appointed.

LA, Schedule 6, para.1,2,3

Complied with. DNFE was abolished in 2003, and BNFE was established in April 2005 to take the role of executing agency. BNFE established a PIMU that performed the duties.

28. Fielding of Consultants Within three months of loan effectiveness, DNFE will enter into a contract with an international accounting and project services firm that will assist the PIMU in the day-to-day contract and financial administration.

LA, Schedule 6, para.5

Not relevant. The project design included a firm for project administration services but did not include the international accounting and project services firm.

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Appendix 9 45

Covenants Reference in

Loan Agreement Status of Compliance

29. Within three months of loan effectiveness, DNFE will recruit staff for two additional positions for monitoring and evaluation activities. One position shall be at the Deputy Director level and one at the Assistant Director level.

LA, Schedule 6, para.13

Complied with.

30. Within three months of loan effectiveness, the Government will establish the Project Coordination Committee (PCC), which will include representatives of DNFE, MOPME, Planning Commission, Ministry of Finance (Finance Division and ERD), Ministry of Social Welfare, Ministry of Women and Children Affairs, Ministry of Youth, NGO Affairs Bureau, local government division, and NGOs.

LA, Schedule 6, para.4

Complied with. Late compliance due to loan suspension. An inter-ministerial project coordination committee was established by BNFE.

31. Project implementation will take place in a decentralized way with emphasis on activities at the community level. DCOs and PCs in the upazilas will work in close cooperation with NFE committees at the district and upazila levels, respectively. To the extent possible, 50 percent of CMC members will be women.

LA, Schedule 6, para.10

Complied with. Of the 9 members at all 7,147 CMC committees (which were decision-making bodies), 3 or 33% were women.

32. BNFE will ensure that the selection of learners, courses, training sites, participating communities, and partner agencies is in accordance with criteria agreed upon by BNFE, ADB, and SDC.

LA, Schedule 6, para.16

Complied with.

33. Within six months of loan effectiveness, BNFE will award third-party monitoring contracts to consulting firms on terms and conditions agreed upon by the Government, ADB, and SDC. The Government will ensure that all recommendations made by these MOPAs will be reflected in the operational plans for the Project.

LA, Schedule 6, para.5

Complied with. Late compliance due to loan suspension. Monitoring contracts awarded in 2009.

34. Within 15 months of loan effectiveness, BNFE will submit to ADB detailed baseline data for evaluating the impact of PLCE programs. Data will be segregated by gender and shall include at least data on: (i) health and hygiene practices; (ii) income; (iii) income and assets controlled by women; (iv) type of waged activities; (v) child care; (vi) access to credit and saving schemes; (vii) household expenditure; and (viii) demand for PLCE.

LA, Schedule 6, para.26

Complied with. Late compliance. According to the government’s project completion report, 210 baseline surveys were conducted in 29 districts before selection of learners of the project. In total, 3,624,844 households were surveyed.

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35. BNFE shall annually organize a two-day planning workshop, chaired by DG/BNFE, with representatives from partner agencies, MOPME, other relevant development partners and project directors of all ongoing BNFE projects. The PIMU of the Project shall be responsible for the documentation of workshop proceedings and shall submit these to the Bank and SDC within one month after the workshop.

LA, Schedule 6, para.15

Complied with.

36. The Borrower, the Bank and SDC shall review the Project at the end of each year starting at the end of the second year with a comprehensive review of the Project design. In addition to reviewing compliance with specific Loan covenants and whether all required inputs and support functions on the Borrower’s side are in place, the review shall evaluate the effectiveness of implementation mechanisms, the efficiency of the training approach as well as evaluate partner agencies. The Borrower, the Bank, and SDC shall document their agreement on these issues in the review report.

LA, Schedule 6, para.28

Complied with.

37. At the end of year 3 of Project implementation, the Borrower, the Bank and SDC shall undertake a midterm review (MTR) of the Project. The MTR shall assess the progress and achievements of the project against its objectives in the consideration of results of the previous review. The Borrower, shall in consultation with BRM, prepare an MTR report including a midterm monitoring report for submission to the Bank and SDC at least 14 days before fielding of the MTR mission.

LA, Schedule 6, para.28

Complied with. The midterm review was conducted jointly by ADB, SDC, and the government in October 2011.

38. At the end of the Project, the Bank, the Borrower and SDC shall jointly review the Project to identify lessons learned.

LA, Schedule 6, para.29

Complied with. A project completion report was prepared by the government in 2013.

39. The Borrower shall cause the Project to be carried out with due diligence and efficiency and in conformity with sound administrative, financial, engineering, environmental and educational practices.

LA, Section 4.01 (a) Partially complied with, the project’s physical completion took 12 years, and its financial completion took 16 years.

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Appendix 9 47

Covenants Reference in

Loan Agreement Status of Compliance

40. In the carrying out of the Project and operation of the Project facilities, the Borrower shall perform, or cause to be performed, all obligations set forth in Schedule 6 to this Loan Agreement.

LA, Section 4.01 (b) Substantially complied with. The borrower abolished DNFE, the executing agency defined in the legal agreement, which led to 2-year loan suspension.

41. The Borrower shall make available, promptly as needed, the funds, facilities, services and other resources which are required, in addition to the proceeds of the Loan, for the carrying out of the Project and for the operation and maintenance of the Project facilities.

LA, Section 4.02 Complied with.

42. In the carrying out of the Project, the Borrower, shall cause competent and qualified consultants and contractors, acceptable to the Borrower and the Bank, to be employed to an extent and upon terms and conditions satisfactory to the Borrower and the Bank.

LA, Section 4.03 (a) Complied with.

43. The Borrower shall cause the Project to be carried out in accordance with plans, design standards, specifications, work schedules and construction methods acceptable to the Borrower and the Bank. The Borrower shall furnish, or cause to be furnished, to the Bank, promptly after their preparation, such plans, design standards, specifications and work schedules, and any material modifications subsequently made therein, in such details as the Bank shall reasonably request.

LA, Section 4.03 (b) Complied with.

44. The borrower shall ensure that the activities of its departments and agencies with respect to the carrying out of the Project and operation of the Project facilities are conducted and coordinate in accordance with sound administrative policies and procedures.

LA, Section 4.04 Substantially complied with. Abolition of the DNFE was not a sound practice.

45. The Borrower shall make arrangements satisfactory to the Bank for insurance of Project facilities to such extent and against such risks and in such amounts, as shall be consistent with sound practice.

LA, Section 4.05 (a) Complied with. All ADB-financed contracts included insurance.

46. Without limiting the generality of the foregoing, the Borrower undertakes to insure, or cause to be insured, the goods to be imported for the Project and to be financed out of the proceeds of the Loan against hazards incident to the acquisition, transportation and delivery thereof to the place of

LA, Section 4.05 (b) Complied with. Consulting service contracts included insurance. Goods and

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use or installation, and for such insurance any indemnity shall be payable in a currency freely usable to replace or repair such goods.

works were delivered satisfactorily.

47. The Borrower shall ensure that the Project facilities are operated, maintained and repaired in accordance with sound administrative, financial, engineering, environmental and educational practices.

LA, Section 4.09 Partially complied with. Trade books are available but have not been used since 2013. Only 12% of the learning centers are still in good shape.

ADB = Asian Development Bank, BNFE = Bureau of Non-Formal Education, CMC=Center management Committee, DCO = district coordination officer, DNFE=Directorate of Non-Formal Education, MOPME=Ministry of Primary and Mass Education, NFE=Non-formal Education, NGO=Non-government Organization, PAS = project administration service, PCC=Project Coordination Committee =, PIMU = project implementation management unit, PIU=Project Implementation Unit, PLCE =post literacy and continuing education. SDC= Swiss Agency for Development and Cooperation Source: Asian Development Bank.

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Appendix 10 49

ECONOMIC REEVALUATION A. Introduction 1. The project was composed of four major components: (i) development of a policy framework for post literacy and continuing education (PLCE); (ii) development, distribution, and adoption of curricula for PLCE; (iii) improvement of the capacity of organizations involved in project implementation; and (iv) provision of PLCE courses to 1.6 million learners in rural areas of Bangladesh. The economic reevaluation focuses only on the fourth component—provision of PLCE courses—and the associated benefits from the increased earnings through either employment or self-employment of course completers in 29 districts of Bangladesh, as the economic benefits of the other components are difficult to quantify, given the available methodologies. B. Project Costs 2. The actual project costs include costs for civil works; equipment; PLCE implementation; policy, planning and public–private partnerships; curriculum and materials development; and training and consulting services. In calculating the economic values of the project costs, the annual financial costs for the project were converted into economic values using (i) the shadow wage rate for both skilled and unskilled labor, and (ii) the conversion factor for non-traded goods. Taxes and duties were also deducted. Annual costs were also converted to FY2014 constant prices.

3. No operation and maintenance costs were included in the project costs as they were negligible and were not included in the original economic analysis at appraisal.

C. Project Benefits

4. At appraisal, the project’s economic benefits were based on an analysis of literacy improvement and income-generating skills of the rural poor. The benefits were assessed considering the 10-year return period after the 6-year project implementation period, 1.6 million trainees with 95% completion rates, and 90% employment or self-employment rates. At completion, the project had provided training to 1.2 million learners during 2002–2013, with approximately 95% of them completing the training successfully.

5. Though the approach is similar, the factors and assumptions for the benefit quantification for the economic reevaluation vary because of the actual results of the project intervention. In particular, the benefits were estimated considering the improvement of skills, which will be reflected in higher incomes either through employment or self-employment over the period as a result of the PLCE program. Because of the trainees’ newly acquired skills, the benefits are broadly assumed from two possible sources: (i) 1.2 million skilled beneficiaries, and (ii) the incremental wage benefits compared to non-skilled persons.

6. The government’s project completion report 19 indicated that 39.5% of the course completers were involved in income-generation activities either through self-employment or through linkages with other employment providers. This is much lower than the 90% assumed at appraisal, which may be due to the low quality of the training and the lower learning ability of the learners. The government’s project completion report repeatedly mentioned that (i) trainers were not skilled enough to provide equal levels of training to learners at all training centers, (ii) there

19 Government of the People’s Republic of Bangladesh, Ministry of Primary and Mass Education. 2014. Post Literacy

and Continuing Education for Human Development Project-2: Project Completion Report. Dhaka.

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50 Appendix 10

was a shortage of female trainers to provide adequate training to female learners, and (iii) a portion of implementing nongovernment organizations lacked the capacity and commitment to perform their assigned responsibilities. These factors combined to have an adverse impact on the training quality and outcomes. D. Economic Analysis 7. The economic reevaluation was based on the cost–benefit analysis conducted on the basis of the actual project results. It used the methodology and techniques in Asian Development Bank guidelines, including the Guidelines for the Economic Analysis of Projects and Framework and Criteria for the Appraisal and Socioeconomic Justification of Education Projects. 20 The analysis involved recalculation of two major investment criteria: (i) the economic internal rate of return (EIRR), and (ii) the net present value for those who have completed the training and received employment because of the project intervention. 8. General assumptions. The approach and assumptions underlying the economic reevaluation were as follows:

(i) All costs and prices were valued using a world price numeraire in FY2014 constant prices.

(ii) Economic prices of investment costs and recurrent costs were estimated by converting the financial prices with a factor of 1.0 for traded goods, a factor of 0.9 for non-traded goods, and a shadow wage factor of 0.82 for skilled labor. Other expenses were converted to economic costs using a standard conversion factor of 0.9.

(iii) Taxes and duties were excluded because they represent transfer payments. (iv) A 12.0% economic discount rate was used. (v) The economic life of the project is assumed at 10 years after project completion.

9. Quantification of benefits. The analysis estimated the economic rate of return (EIRR) for the project based on incremental wage benefits because of the newly obtained skills through this project intervention. However, external benefits that accrue to society were not included, as they are difficult to measure. Therefore, the EIRR represents a private rate of return captured by direct beneficiaries only. Although the methodology used for this economic analysis followed that used for the initial economic analysis during the project design, the factors considered, and assumptions made were on the basis of the actual project results. The base case factors and assumptions were as follows:

(i) A total of 1.2 million learners received training from various training centers. (ii) Of the trainees, 95% completed the training courses. (iii) Of the completers, only 39% have been employed or self-employed for 15 days

per month and 6 months per year on the average. The number of days and months are conservative, allowing for intermittent self-employment.

(iv) The incremental daily wage attributable to completion of project courses is estimated as $0.28 per day. This is based on the government’s project completion report (see Appendix 11 for summary), which suggests that real daily wage increased by 16%

20 ADB. 2017. Guidelines for the Economic Analysis of Projects. Manila. ADB. 1994. Framework and Criteria for the Appraisal and Socioeconomic Justification of Education Projects. Manila.

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Appendix 10 51

after training from the base monthly household income of $109.21 As a conservative case, we assume that a trainee contributes to 40% of the household income growth.22 (v) The number of trainees at full development in year 12 totaled 1.2 million. The

growth in the number of trainees is as follows: year 2 of project implementation, 0.5%; year 3, 0.5%; year 4, 0.5%; year 5, 5.5%; year 6, 5.5%; year 7, 10%; year 8, 20%; year 9, 30%; year 10, 50%; year 11, 70%; and year 12, 100%.

10. Reevaluation of the economic internal rate of return. Table A10.1 presents the economic reevaluation. The EIRR is estimated to be 26.0%, lower than the 35.3% calculated at appraisal. This discrepancy is mainly due to the following reasons: (i) the actual lower employment of 39% against the envisaged 90%, and (ii) the longer period (12 years) of project implementation compared to the planned implementation period (6 years). These negative factors on the economic return were partially offset by (i) the actual incremental wage of $0.28 per day, which is slightly higher than the assumed $0.25 per day at appraisal, and (ii) the lower project cost by 48% than the cost at appraisal. E. Non-Quantified Economic Benefits 11. The estimated EIRR here represents the private rate of return captured by direct beneficiaries only and does not take into account the external benefits that accrue to society. In reality, the project has not only brought benefits to the direct learners, but it also has long-run consequential impacts on other social agents, who have been directly or indirectly involved in the project.

12. Trainers or instructors. About 14,362 beneficiaries of the project, including program coordinators, master trainers, supervisors, and facilitators, received training on nonformal education (NFE). Also, 50 participants received overseas training and acquired adequate knowledge on the modern concept of NFE from other countries. While this aspect was not captured in the estimated EIRR, it will help in effectively implementing and guiding future NFE programs.

13. Female trainees. Women’s participation in the learning was about 53%. Empirical evidence suggests that education investments have significant differential welfare impacts in favor of women. Usually, families with educated women score better on health and family welfare indicators. Also, women who obtain more education are more likely to work in skilled occupations, have lower fertility rates, and have greater access to media services.

14. Knowledge transfer. Training on 16 different marketable trades, including tailoring, embroidery, house wiring, and livestock, was provided to the PLCE learners. This knowledge transfer not only provided employment and self-employment opportunities to the learners, but also created the possibility of similar knowledge transfer from learners to others in the future. As a large number of the learners are self-employed and own their own businesses, their employees will also benefit.

21 According to Table A11.4, before adjusting for inflation, the household income of employed trainees increased by

54% after training. As the detailed documentation on the impact study is unavailable, it is unclear when the base and end years of the household data collection were, so inflation rate is not available. Assuming that crop production activities were not affected by PLCE, the inflation is inferred as 38% (for the same period as the household income growth) from the average monthly income growth of crop production activities.

22 At the project design stage, the incremental daily wage was assumed to be $0.25.

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52 Appendix 10

Table A10.1: Economic Reevaluation ($)

Year

Aggregate Costs Additional Wage of

Trainees Net

Benefit NPV at 12%

Capital a Recurrent b Total

2002 0 151,890 151,890 0 (151,890) (151,890) 2003 25,895 10,621 36,516 0 (36,516) (32,604) 2004 116,835 154,649 271,484 54,947 (216,536) (172,621) 2005 0 0 0 54,947 54,947 39,110 2006 0 0 0 54,947 54,947 34,920 2007 1,713,242 33,505 1,746,747 604,420 (1,142,327) (648,187) 2008 0 0 0 604,420 604,420 306,218 2009 6,299,980 127,692 6,427,672 1,098,946 (5,328,726) (2,410,445) 2010 6,958,416 114,937 7,073,354 2,197,892 (4,875,462) (1,969,117) 2011 5,204,051 1,279,621 6,483,673 3,296,838 (3,186,835) (1,149,205) 2012 10,199,952 985,696 11,185,649 5,494,729 (5,690,919) (1,832,324) 2013 1,340,343 1,004,103 2,344,446 7,692,621 5,348,753 1,537,472 2014 3,234,159 350,547 3,584,706 10,989,458 7,404,753 1,900,616

2015 0 0 0 10,989,458 10,989,458 2,518,500

2016 0 0 0 10,989,458 10,989,458 2,248,661

2017 0 0 0 10,989,458 10,989,458 2,007,733

2018 0 0 0 10,989,458 10,989,458 1,792,619

2019 0 0 0 10,989,458 10,989,458 1,600,552

2020 0 0 0 10,989,458 10,989,458 1,429,065

2021 0 0 0 10,989,458 10,989,458 1,275,951

2022 0 0 0 10,989,458 10,989,458 1,139,242

2023 0 0 0 10,989,458 10,989,458 1,017,180

2024 0 0 0 10,989,458 10,989,458 908,196

NPV = 11,389,642

IRR = 26.0% () = negative, EIRR = economic internal rate of return, NPV = net present value. a Capital costs include civil works, equipment, and curriculum and materials development. b Recurrent costs include consulting services and project management. Source: Asian Development Bank estimates.

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Appendix 11 53

SUMMARY OF PROJECT IMPACT STUDY

1. During June 2012, three project teams conducted a project impact study through focus group discussions, interviews, and field observations. Table A11.1 presents the names of divisions, districts, and subdistricts visited, as well as the number of course graduates contacted.

Table A11.1: Name of Divisions, Districts, Upazilas and Number of Graduates Contacted Division District Upazila No.of Graduates

Barisal

Patuakhali

Patuakhali Sadar 30 Mirzaganj 30

Chittagong

Chittagong

Chandanaish 15 Sitakunda 18

Cox’s Bazar

Cox’s Bazar Sadar 20 Ukhiya 10

Dhaka

Faridpur

Faridpur Sadar 09 Madhukhali 13

Khulna

Bagerhat

Mongla 30 Fakirhat 30

Meherpur

Meherpur Sadar 30 Mujibnagar 30

Rajshahi

Kurigram

Kurigram Sadar 29 Rajarhat 18

Chapai Nawabganj

Chapai Nawabganj Sadar 15 Nachole 28

Rangpur

Rangpur Sadar 32 Mithapukur 31

Sylhet

Sunamganj

Sunamganj Sadar 14 Chhatak 24

Total 20 456

Source: Ministry of Primary and Mass Education, Bangladesh.

2. In each district, focus group discussions and individual interviews were conducted with at least 10 graduates who were involved in different income-generating activities after receiving training from the project courses. In all cases, more than 50% of the graduates were female. In addition, the project impact study made some physical visits to the workplaces of the learners in different districts to validate the information given during the focus group discussions and individual interviews.

3. Focus group discussions and interviews were mainly guided by the following indicators: (i) average monthly income, (ii) average purchasing capacity, (iii) schooling of children, (iv) family health status, (v) family nutritional status, (vi) social awareness, (vii) food habits, and (viii) cleanliness. The rest of the Appendix presents the findings.

4. Average family size of the respondents by division, district, and subdistrict. Table A11.2 presents the detailed average family size of the respondents by division, district, and subdistrict. The family size of the respondents of the study ranges from 4 to 8 persons. The average family size is 5.52 persons.

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54 Appendix 11

Table A11.2: Average family size of the graduates by division, district and upazila

Division District Upazila Average Family size (No.)

Total Male Female Children

Barisal Patuakhali Patuakhali Sadar 4.83 2.07 2.17 1.21

Barisal Patuakhali Mirzaganj 5.20 2.40 2.70 1.00

Chittagong Chittagong Chandanaish 6.33 3.40 3.62 1.00

Chittagong Chittagong Sitakunda 6.33 3.33 3.00 1.00

Chittagong Cox’s Bazar Cox’s Bazar Sadar 7.90 3.90 4.00 1.60

Chittagong Cox’s Bazar Ukhiya 7.70 4.20 3.30 4.00

Dhaka Faridpur Faridpur Sadar 4.56 2.11 2.75 1.00

Dhaka Faridpur Madhukhali 5.38 2.69 2.54 1.00

Khulna Bagerhat Mongla 4.43 2.03 2.32 1.13

Khulna Bagerhat Fakirhat 4.60 2.27 2.27 1.29

Khulna Meherpur Meherpur Sadar 5.07 2.47 2.17 1.00

Khulna Meherpur Mujibnagar 5.33 2.83 2.20 1.42

Rajshahi Kurigram Kurigram Sadar 4.66 2.28 2.31 1.25

Rajshahi Kurigram Rajarhat 5.17 2.67 2.44 1.15

Rajshahi Chapai Nawabganj

Chapai Nawabganj Sadar 4.47 2.20 2.20 1.00

Rajshahi Chapai Nawabganj

Nachole 5.57 2.85 2.81 1.36

Rajshahi Rangpur Rangpur Sadar 5.34 2.59 2.69 1.31

Rajshahi Rangpur Mithapukur 5.00 2.52 2.39 1.46

Sylhet Sunamganj Sunamganj Sadar 8.21 4.07 4.43 1.38

Sylhet Sunamganj Chhatak 7.79 3.33 4.38 1.83

All 5.52 2.70 2.72 1.29

Source: Ministry of Primary and Mass Education, Bangladesh.

5. Occupations of the respondents. Table A11.3 gives a detailed account of changes of occupation of the respondents, before and after their involvement in the project courses. Data reveals that the unemployment rate declined to 5.7% from 44.08% among the respondents with the project courses. In terms of the occupations of the graduates, involvement in the tailoring trade increased to 51.54% from 0.22% among the respondents. While there was no involvement of the respondents in house wiring, welding, cattle and poultry farming, beekeeping, and pipe fitting before attending the project courses, occupations in those fields increased after the training.

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Appendix 11 55

Table A11.3: Occupation of the Graduates

Occupation After attending PLCE Course Before attending PLCE Course No. of respondents % No. of respondents %

1 Unemployed 26 5.70 201 44.08 2 Tailoring 235 51.54 1 0.22 3 House Wife 52 11.40 191 41.89 4 Electrician 29 6.36 0 0.00 5 Welding 3 0.66 0 0.00 6 House wiring 13 2.85 2 0.44 7 Farmer 27 5.92 43 9.43 8 Fishing 18 3.95 2 0.44 9 Business 7 1.54 5 1.10

10 Worker 0 0.00 2 0.44 11 Cattle Fattening 13 2.85 0 0.00 12 Poultry 2 0.44 0 0.00 13 Student 0 0.00 2 0.44 14 Self-employment 1 0.22 0 0.00 15 Bee keeping 2 0.44 0 0.00 16 Transportation 0 0.00 1 0.22 17 Boatman 1 0.22 1 0.22 18 Bicycle-van repairing 17 3.73 0 0.00 19 Day Labor 1 0.22 5 1.10 21 Pipe Fitting 3 0.66 0 0.00 22 Driver 1 0.22 0 0.00 23 Tree Plantation 1 0.22 0 0.00 24 Grameen Trade or Kuthir Shilpa 4 0.88 0 0.00

All 456 100 456 100

PLCE = post literacy and continuing education. Source: Ministry of Primary and Mass Education, Bangladesh.

6. Average family income of respondents. The monthly average family income of the respondents from several sources was Tk14,047.38 before attending the project courses and Tk20,833.28 after attending the courses (Table A11.4). The income was generated from cropping, livestock, fishery, wage labor, grocery shop, nonfarm sources, remittance and other sources. Agriculture, poultry, and livestock were the major income sources for most of the respondents.

Table A11.4: Monthly average family income of the respondents

Head of income

Average Family Income (Tk.)

Before attending PLCE Course After attending PLCE Course

No. of respondents

Average income (Tk.)

No. of respondents

Average income (Tk.)

1 Crop 250 3,216.00 250 4,452.00

2 Live stock 181 3,645.30 186 4,116.67

3 Poultry 235 1,004.72 245 1,498.90

4 Fisheries 83 5,101.20 92 7,030.43

5 Income from wage labor 170 4,595.88 178 6,621.91

6 Income from remittances 12 21,966.67 18 18,683.33

7 Grocery shop 31 4,245.16 36 5,980.56

8 Non-farm sources 58 6,924.14 102 6,377.94

9 Other source 102 2,811.27 253 3,503.56

All 456 14,047.38 456 20,833.28

PLCE = post literacy and continuing education. Source: Ministry of Primary and Mass Education, Bangladesh.

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56 Appendix 11

7. The number of the respondents engaged in non-farm or other activities had increased remarkably after attending the courses. Of the total 456 respondents, only 52 respondents were involved in non-farm activities before attending the project courses. This number increased to 102 after attending the courses. Similarly, while there were only 102 respondents involved in other activities before attending the courses, the number increased to 253 after attending the courses.

8. Average family expenditure of the respondents. Table A11.5 presents the average family expenditure of the respondents. The monthly average family expenditure of the respondents from several sources was Tk7,997.32 before attending the project courses. After attending the courses, their monthly average family expenditure increased by 39.48% to Tk11,154.72. Major family expenditures included food, clothing, housing, health care, education, loan repayment, social and religious festivals, and dowry. It is observed from Table A10.5 that the number of loan borrowers had increased among the respondents after attending the project courses. Before attending the courses, the percentage of loan borrowers was about 20%. This percentage increased to 28% after attending the courses. Before attending the courses, the percentage of respondents caring children education was about 62.5%. This percentage increased to 71.49% after attending the courses.

Table A11.5: Monthly Average family expenditure of the respondents

Head of Expenditure

Before attending PLCE Course After attending PLCE Course

No. of respondents

Average expenditure (Tk.)

No. of respondents

Average expenditure (Tk.)

1 Food 436 3585.62 450 4885.96 2 Clothing 415 935.82 432 1365.30 3 Housing 167 790.12 182 1052.75 4 Health care 385 719.74 405 849.02 5 Children Education 285 801.32 326 1106.43 6 Loan repayment (FY) 90 2690.22 127 2761.81 7 Social/religious festivals 282 758.97 305 1310.60 8 Dowry 10 23050.00 7 21500.00 9 Others 139 1806.12 163 2662.58 All 456 7997.32 456 11154.72

PLCE = post literacy and continuing education. Source: Ministry of Primary and Mass Education, Bangladesh.

9. Data also shows that, before attending the courses, the percentage of respondents taking health care was about 84%. The percentage increased to 88% after attending the courses. This was because the respondents became more aware about health care through the discussions during the course training. Before attending the courses, the number of respondents paying dowry was 10 out of the total respondents. This number was reduced to 7 after attending the courses due to better social awareness obtained through the courses.

10. Gender involvement in household decision making. Table A11.6 shows that male dominated the family decisions concerning spending household income, children education, marriage of children, family planning, and food items before attending the project courses. The scenario changed after attending the courses. In terms of participation in decision making, particularly on procuring household items, children’s education, marriage of children, family planning, and resolving different familial issues, it is observed that joint involvement of male and female members of the family had increased remarkably among the graduates after attending the project courses. Table A11.6 presents the scenario change.

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Appendix 11 57

Table A11.6: Gender involvement in household decision making

Decision making issues

Decision made by No. and %

Before After

Male Female Both Male Female Both

No. % No. % No. % No. % No. % No. %

1 Purchasing Food

items 347 76.10 32 7.02 67 14.69 32 7.02 23 5.04 391 85.75

2 Procuring Food items

in large quantity 324 71.05 36 7.89 85 18.64 27 5.92 26 5.70 392 85.96

3

Purchasing Toiletries

(hair oil, less, hair clip,

etc.)

220 48.25 159 34.87 62 13.60 19 4.17 95 20.83 327 71.71

4 Purchasing Gold &

silver Jewelry 209 45.83 111 24.34 103 22.59 16 3.51 51 11.18 356 78.07

5 Purchasing Clothes

for kids 263 57.68 76 16.67 95 20.83 16 3.51 43 9.43 375 82.24

6 Purchasing

Household utensils 284 62.28 47 10.31 103 22.59 21 4.61 28 6.14 385 84.43

7

Purchasing Groceries

(Kerosene, oil, spices,

etc.)

309 67.76 35 7.68 93 20.39 41 8.99 26 5.70 370 81.14

8 Children’s education 274 60.09 22 4.82 126 27.63 12 2.63 26 5.70 384 84.21

9 Marriage of daughter

and son 265 58.11 17 3.73 120 26.32 15 3.29 17 3.73 370 81.14

10 Spending household

income 289 63.38 17 3.73 132 28.95 14 3.07 14 3.07 410 89.91

11 Neighbours take

advice from 234 51.32 62 13.60 139 30.48 10 2.19 20 4.39 405 88.82

12

Owning Assets (cattle,

jewelry, goat/sheep,

etc.)

281 61.62 27 5.92 119 26.10 45 9.87 23 5.04 359 78.73

13 Adopting Family

planning 302 66.23 20 4.39 79 17.32 54 11.84 17 3.73 330 72.37

300 65.79 15 3.29 92 20.18 45 9.87 14 3.07 348 76.32

Source: Ministry of Primary and Mass Education, Bangladesh.

11. Quality standard of the respondents. Table A11.7 shows that average purchasing capacity, number of children going to school, general health status, general nutritional status, level of social awareness, degree of cleanliness, changes in food intake and food habit, changes in sanitation, changes in drinking water, and changes in clothing improved significantly among the project course graduates. It also shows that participation of the course graduates, facilitators and CMC members in social development work had increased. Besides, capacity of the CMC members in terms of financial management, learner and facilitator management also increased significantly through the project interventions.

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58 Appendix 11

Table A11.7: Status of Quality Standard of the Respondent

Indicators Indicators by No. and %

Increased Remain same Decreased

No. % No. % No. % 1 Average purchasing capacity 434 95.18 8 1.75 0 0.00 2 No. of Children going to School 369 80.92 42 9.21 3 0.66 3 General Health Status 435 95.39 17 3.73 2 0.44 4 General Nutritional Status 434 95.18 17 3.73 1 0.22 5 Level of Social awareness 433 94.96 8 1.75 0 0.00 6 Degree of Cleanliness 428 93.86 18 3.95 1 0.22 7 Changes in food intake 430 94.30 30 6.58 6 1.32 8 Changes in food habit 429 94.08 31 6.80 2 0.44 9 Changes in sanitation 430 94.30 13 2.85 0 0.00

10 Changes in drinking water 429 94.08 26 5.70 0 0.00 11 Changes in Clothing 415 91.01 22 4.82 2 0.44 12 Changes in participation in social development work a Learners 417 91.45 22 4.82 0 0.00 b Facilitators 422 92.54 38 8.33 0 0.00 c CMC members 425 93.20 45 9.87 0 0.00 d Female learner’s participation 421 92.32 13 2.85 2 0.44 e Female leadership in the society 410 89.91 30 6.58 0 0.00

13 Capacity increased of CMC a Financial Management 418 91.67 14 3.07 0 0.00 b Learners Management 428 93.86 18 3.95 0 0.00 c Facilitator Management 423 92.76 19 4.17 0 0.00

Source: Ministry of Primary and Mass Education, Bangladesh.

12. In summary, the major project’s impacts are:

(i) The average monthly income of the focus group participants increased to about

Tk20,000 from Tk14,000 and their average monthly expenditure increased to about Tk11,000 from Tk8,000;

(ii) The number of children of participants attending primary school was higher than before the project intervention;

(iii) Awareness levels about health care and nutritional issues increased significantly among the families of participants, and they were less prone to health hazards;

(iv) Participants were more socially aware and cooperative to resolve common social issues like repairing roads and culverts and bamboo bridges;

(v) The issue-based discussions of the courses helped participants understand more about the importance of a balanced diet and affordable yet nutritious foods; and

(vi) Participants understood the importance of cleanliness better and tried to keep environment clean.