Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No: 18755

IMPLEMENTATION COMPLETION REPORT

REPUBLIC OF MALAWI

EDUCATION SECTOR CREDIT II(CREDIT No. 2083-MAD)

December 29, 1998

Human Development 1Eastern and Southern AfricaAfrica Region

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not otherwise be disclosed withoutWorld Bank authorization.

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

CURRENCY EQUIVALENTS

At the time of Project AppraisalMalawi Kwacha 2.65= US$1

At the time of project completion missionMalawi Kwacha 25 = US$1

WEIGHTS AND MEASURES

Metric System

FISCAL YEAR OF BORROWER

April 1- March 31

ABBREVIATIONS AND ACRONYMS

AfDB Africa Development BankCERT Center for Educational Research and TrainingDflD Department of International Development (U.K.)ICR Implementation Completion ReportIDA International Development AssociationMANEB Malawi National Examination BoardMASTEP Malawi Special Teacher Education ProgramMCDE Malawi College of Distance EducationMIE Malawi Institute of EducationMIITEP Malawi Integrated In-Service Teacher Education ProgramMOE Ministry of EducationPIU Project Implementation UnitPSBU Primary School Broadcasting UnitUSAID United States Agency for International Development

Vice President Callisto E. Madavo (AFRVP)Director Barbara Kafka (AFC03)Sector Manager Ruth Kagia (AFTH1)Task Manager Peter Ngomba (AFTH4)

FOR OFFICIAL USE ONLY

Table of Contents

PREFACE iEVALUATION SUMMARY ii

PART 1: PROJECT IMPLEMENTATION ASSESSMENT 1

A. INTRODUCTION AND BACKGROUND 1B. ACHIEVEMENT OF OBJECTIVES IC. IMPLEMENTATION RECORD AND MAJOR FACTORS AFFECTING THE PROJECT 2D. PROJECT SUSTAINABILrry 6E. BORROWER PERFORMANCE 6F. BANK PERFORMANCE 7G. ASSESSMENT OF OUTCOME 8H. FUTURE OPERATIONS 81. KEY LESSONS LEARNED 9

PART II: STATISTICAL ANNEXES 10

Table 1: Summary of Assessments 10Table 2: Related Bank Loans/Credits 11Table 3: Project Timetable 12Table 4: Cumulative Estimated and Actual Loan Credit Disbursements (US$ Millions) 13Table 5: Key Indicators for Project Implementation 14Table 6: Key Indicators for Project Operation 21Table 7: Studies Included in Project 22Table 8A: Project Costs (US$ Million) 23Table 8B: Project Financing (US$ millions) 24T;ible 9: Economic Costs and Benefits 25Table 10: Status of Legal Covenants 26Table 11: Compliance with Operational Manual Statements 28Table 12: Bank Resources: Staff Inputs 1/ 29Table 13: Bank Resources: Missions 30

APPENDIXES

A. Completion Mission's aide-memoireB. Borrower contribution to the ICRC. Miscellaneous appendixes:I - List of Persons Met2 - List of Sites Visited3 - Sites for Primary School Classroom RehabilitationD. Map

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not otherwise be disclosed withoutWorld Bank authorization.

IMPLEMENTATION COMPLETION REPORTMALAWI

EDUCATION SECTOR CREDIT II(CREDIT No. 2083-MAI)

PREFACE

1. This is the Implementation Completion Report (ICR) for the Second Education SectorCredit in Malawi (Cr. 2083-MAI), for which a credit in the amount of SDR 29.5 million (US$36.9 million equivalent) was approved on December 12, 1989 and made effective on April 4,1990.

2. The Credit was closed on June 30, 1998, after having been extended twice, for one yearon each occasion. Over 99.5% of the Credit was disbursed. Final disbursement took place onNovember 10, 1998, at which time a balance of about $192,000 was cancelled.

3. The ICR was prepared by Mr. Peter Ngomba, Human Development Group of the AfricaRegion with assistance from Mr. Mulugeta Wodajo (Consultant) and Ms. Anne Anglio (TeamAssistant). It was reviewed by Mrs. Ruth Kagia (Sector Manager) and Ms. Barbara Kafka(Country Director). The Borrower had no comments on the ICR.

4. Preparation of this ICR was started in April 1998 during the Bank's final supervisionmission. An ICR mission comprising Mr. M. Woda.jo and Ms. Y. Amde, consultants, wasundertaken between May 16-30. The Borrower contributed to the preparation of this ICR bypreparing its own evaluation of the project's execution and initial preparation which is included inthe report as Annex.

5. This report is based on material in the project files, discussions with Bank staff andofficials of the Govemment who were involved in the preparation and implementation of theproject, data collected by the ICR mission in the field and site visits to institutions assisted underthe pro.ject. A list of officials in the Ministry of Education and project institutions as well as thesites visited by the ICR mission are included as Appendices.

IMPLEMENTATION COMPLETION REPORTMALAWI

EDUCATION SECTOR CREDIT II(CREDIT No. 2083-MAI)

EVALUATION SUMMARY

Introduction

1. IDA has been active in the education sector in Malawi since 1967. This is the seventheducation project to be completed. Two more are under implementation. In spite of considerableassistance from IDA and other Donors, the sector still faces major constraints, particularly withregard to improving the quality of education at all levels, expanding access to secondaryeducation, and generally in strengthening institutional capacity for planning, management andimplementation.

Project Objectives

2. Statement of Project Objectives. The projects development objective was to assist thegovermment in financing the second phase (1990-95) of its ten-year Education Plan. Specificallythe project was intended to:

(a) improve the quality of education at all levels;

(b) expand access to primary and secondary education;

(c) strengthen sector management, budgeting and planning; and

(d) improve resource mobilization to the sector.

To achieve these objectives the project financed a number of interventions in primary, secondaryand post-secondary education. It also sought to address deficiencies in planning and managementof the sector as well as to introduce policy measures that would increase resources available to thesector.

Assessment of Project Objective.

3. While the impact and outcome of the various objectives and components were uneven, onthe whole the project was satisfactory. Many targets were reached and some even exceeded. Inparticular three components aimed at improving educational quality at the primary level --rehabilitation of primary school classrooms, preparation and distribution of textbooks andteachers' guides, and upgrading primary school teachers through an innovative special teachereducation program (MASTEP) -- achieved or even exceeded their objectives. Following is asummary of attainment of project objectives, grouped by component as in the appraisaldocuments.

.i.

Implementation Completion Report Evaluation SummaryMalawi - Education Sector Credit JI

4. Textbook Preparation and Distribution. The project achieved highly satisfactory resultsin the preparation and distribution of primary school textbooks and teachers' guides. At appraisal,the plan was to provide textbooks in four subjects for Standards I to 4 only. Coverage wasextended to Standard 8 in the course of implementation. Over 7 million copies of pupils' booksand teachers' guides were prepared, printed through ICB and distributed. This helped alleviatetextbook shortage in the country; it also resulted in strengthening significantly the technicalcapacity and expertise of the Malawi Institute of Education (MIE).

5. Teacher Training and Upgrading. Project achievement was satisfactory in upgradingteachling skills and academic level of over 4,000 primary school teachers through a new andinnovative program that combined short residential training with supervised teaching and fieldseminars. A revised version of this model is now adopted by the Ministry of Education as themain vehicle for upgrading primarv school teachers and is replicated by the Bank and otherdonors in follow-up projects.

6. Rehabilitation of Primary School Classrooms. The project achieved highly satisfactoryresults in rehabilitating over 2,000 classrooms, almost ten times the number planned at appraisal.In tlhe wake of a massive expansion of primary school enrollment following the abolition ofschool fees by a government that came to power under a new multi-party election, the IDA'sprompt response to Government's urgent request to assist with school rehabilitation iscommendable.

7. Improving Educational Meaxurements. The project achieved satisfactory results instrengtlhening the Malawi National Examinations Board (MANEB) in diversifying primaryschools examinations and in increasing its computer capacity.

8. The project's achievement was unsatisfactory with regard to the provision of equipmentand fi4rniture for primary schools and instructional materials and science kits for secondaryschools. Also, the project was not successful in strengthening school supervision. Curriculumreform at the secondary level was not undertaken. The project was partially successful inexpanding access to secondary education by creating about 3000 student places in ten newDistance Education Centers (DEC). But the DECs (now converted to day secondary schools) donot have appropriately qualified teachers nor essential science equipment and instructionalmaterials, as a result of which the quality of instruction is not at par with the other secondaryschools in the country.

9. Institutional Development. The project was partially successful in initiating theinherently difficult and complex task of devolving educational management to districts andregions. Project in-puts (e.g. provision of houses for district inspectors, local training andseminars for teachers and supervisors) have been implemented. Government has began topartially devolve certain functions (notably personnel and to a lesser extent, accounting) butadditional resources and concerted effort by government and others is required. Follow-upprojects by the Bank and other donors (notably DflD and GTZ) are providing additionalassistance in pursuit of this ob.jective.

10. Resource Mobilization. The project was successful in mobilizing additional resources tothe sector. Education's share of total government expenditure exceeded targets sought at appraisalby almost two-fold, from 11% at appraisal to 23.8% in 1994-95. School fees were increased at

iii

Implementation Completion Report Evaluation SummaryMalawi - Education Sector Credit II

secondary schools and at the University. Boarding fees were also increased, and later governmentintroduced day secondary education as official policy. While these and other related policychanges may not be directly attributable to the project, at the very least the project did serve asthe main vehicle for the IDA and the govemment to pursue policy dialogues for mobilizingadditional resources to the sector.

Implementation Record and Factors Affecting the Project

11. Success in implementing the individual project activities was uneven for several reasons:first the project's scope was too broad and extensive in relation to implementation capacity in thesector. As a result certain components (e.g. provision of science kits and leaming materials forsecondarv schools) did not perform as well as others (e.g. primary school textbook preparation).Second. the Project Implementation Unit (PIU) was over stretched as it was completingimplcmentation of the preceding project when this project was launched, thereby delaying projectstart-up. Third, at the beginning the PIU also lacked the requisite technical staff (architects,quantity surveyors) as these positions were previously held by expatriate staff and were beinglocalizcd at the time. These problems were further compounded by factors largely beyond thecontrol of the govemment such as serious economic and financial problems in the country,succcssive years of drought, and disruption in extemal assistance. These factors severelyconstrained government's ability to release counterpart funds in a timely manner.

Project Sustainability

12. The project is likely to be sustained for the foreseeable future. Government hasdemonstrated its strong commitment to the sector by doubling its share of allocation. Also,govement is pursuing cost saving and efficiency measures in the sector, including introductionof day secondary schools, affordable school designs and construction, and more cost-effectiveapproaches in teacher education.

Borrower Performance

13. On the whole borrower performance was satisfactory. Borrower's performance duringpreparation is rated satisfactory as the borrower was actively involved in the preparation ofvarious studies that provided valuable in-put for preparation of the project. Though uneven,borrower performance during implementation was generally satisfactory. After initial delays, thePIU was able to implement the project largely as planned, although as noted earlierimplementation success was not even across components.

Bank Performance

14. Bank performance during preparation is rated satisfactory. Appraisal results were mixed:potential risks were appropriately identified but implementation constraints were underestimated.Bank performance during implementation was on the whole satisfactory.

Assessment of Outcome

15. Overall, the project's outcome was satisfactory. Three components in particular wereparticularly successful: the preparation and distribution of over 7 million textbooks and

iv

Implementation Completion Report Evalutation SummaryMalawvi - Education Sector Credit II

thousands of teachers' handbooks has alleviated critical shortage of learning materials and createdin-country publishing capacity at MIE for textbooks and related leaming materials: rehabilitationof thousands of otherwise unusable classrooms has eased overcrowding; and finallv the MalawiSpecial Teacher Education Program (MASTEP) has introduced a new and less costly model forteacher upgrading. A modified version of the model has been adopted by the Ministry andreplicated by the Bank and other donors.

Future Operation

16. To enhance and sustain the effectiveness of this project, Govemment should pursueintroduction of efficiency and other cost saving measures which are an integral part of the SectorInvestment Plan (SIP) currently under discussion. In fact, MOE is in the final stages of finalizinga detailed Sector Investment Plan (SIP) which is intended to serve as the framework forinvestment in human resources by the govemment and all donor agencies in the future. Donoragencies active in the sector (which includes DflD, USAID, GTZ, AfDB, DANIDA, JICA, inaddition to the Bank) meet regularly with MOE officials. This has served as a useful forum forthe Gov emment to present successive drafts of the SIP for the their review and comments. In themeantime, pending the finalization of the SIP, the Bank has approved two projects that financediscrete investments in primary and secondary education that are manifestly within the SIP'soverall objectives and resource confines. ODA, AfDB and GTZ are doing likewise. Govemmentcontinues to demonstrate a strong commitment to human resource development. About 25% ofthe Govemment's total recurrent budget is allocated to education, a clear testimony to thatcommitment. There is virtually no scope for Govemment to increase its allocations beyondpresent levels. Thus future Bank operations in the sector are taking this resource constraint intoaccount in designing projects that promote such measures as increased cost recovery especially atpost-secondary level, community involvement in school construction and maintenance, affordableschool designs, non-boarding secondary schools, and more cost-effective approaches in teachertraining ( such as MIITEP).

17. Govemment should also pursue vigorously measures for retaining publishing andreprinting rights for the textbooks that were prepared by MIE. Ownership of copyright andpublishing rights by non-govemment agencies may otherwise adversely affect Bank participationin the financing of textbook printing through intemational bidding (ICB).

Key Lessons Learned

18. The following are some of the lessons learned from this operation:

* Flexibility during implementation is critical in responding to new and pressing developmentsin the sector;

* Great weight should be given to assessment of implementation capacity during preparationand appraisal;

* Successful institutional development initiatives require sustained assistance over a period oftime and in the course of successive projects;

* Implementation staff (technical, managerial, financial) should be put in place before a projectis initiated.

v

IMPLEMENTATION COMPLETION REPORTREPUBLIC OF MALAWI

EDUCATION SECTOR CREDIT n(CREDIT No. 2083-MAI)

PART I: PROJECT IMPLEMENTATION ASSESSMENT

A. INTRODUCTION AND BACKGROUND

I. Since independence in 1964, Malawi has had to contend with a series of economicdifficulties caused in large measure by falling world prices for its exports and rapid escalation inimport prices, particularly fuel and capital goods. Also, regional political instability and civilstrife in Mozambique and elsewhere in the region closed its access to ports thereby escalatingtransport costs and causing a large influx of refugees. While some of these pressures, particularlyregional instability and influx of refugees have largely abated, Malawi continues to face majoreconomic difficulties and remains one of the poorest countries in the continent. Notwithstandingthe above, the country has made a remarkable transition to a multi-party democracy, beginningwith the first multi-party elections held in 1994. In education too the country has made majorstrides in spite of severe economic and resource constraints. The World Bank has for a long timesupported the education sector in Malawi. The first Bank-assisted project was approved in 1967.Six additional projects have been completed since and two more are under implementation. Inspite of considerable assistance from the Bank and other Donors, the sector faces majorconstraints, particularly with regards to upgrading the quality of instruction at all levels,expanding access at the post primary level, and generally in strengthening institutional capacityfor planning, management and implementation.

B. ACHIEVEMENT OF OBJECTIVES

2. The Project's development objective was to assist the Government in the financing of thesecond phase (1990-1995) of its ten-year Educational Plan. Specifically, the project' s objectiveswere to: (i) improve the quality of education at all levels; (ii) expand access to primary andsecondary education; (iii) strengthen sector management, budgeting and planning; and (iv)improve resource mobilization to the sector. To achieve these objectives, the project containedthe following components: (a) Primary Education: curriculum reform and development, textbookpreparation and distribution, upgrading the quality and expanding the output of primary schoolteachers. strengthening the inspectorate and examination reforms; (b) Secondary Education:curriculum reform, improving access, provision of textbooks, library books and science kits; (c)Post-Secondary Education: staff development at the Faculty of Commerce, and modest expansionof output of accountants; (d) Institutional Development: devolution of key educational services tothe districts and regions; (e) Resource Mobilization: increasing education's share of thegovemment budget and reforms in fee structure in schools and at the University.

1

Implementation Completion Report Part 1: Project Implementation AssessmentMalawi - Education Sector Credit II

3. The Development Credit Agreement was amended on July 29, 1993 to reflect thereallocation of the proceeds of the Credit, following the Government's decision to drop thecomponent on Primary School Broadcasting Unit (PSBU). This decision was based on thefindings from pilot phase of the program which demonstrated that PSBU was unsustainable. Thefunds released were reallocated mostly to finance textbook preparation and distribution foradditional grades (standards 5 to 8).

Achievement of Project Objectives

4. The project objectives were responsive to the country's needs, and in as much as theproject financed specific investment costs of the second phase of the country's educational plan,they were consistent and fully integrated with the country's development plan. The project' scomponents were too broad and extensive as they covered virtually the entire sector, fromexpanding access to primary and secondary schools, teacher training/upgrading, curriculumdevelopment, production/distribution of textbooks, to mention the main areas assisted under theproject. In retrospect a simpler and more focused project design would have been more in linewith the implementation capacity in the country. The project was designed as a sector investmentoperation aimed at implementing certain policy reforms, and proceeds of the credit were to bedisbursed as the reforms were implemented. The policy reforms sought (such as increasingeducation's share of total govemment budget, increasing tuition, boarding and other school fees),were achieved ahead of schedule, thereby preempting the need to tie disbursement to thosechanges.

C. IMPLEMENTATION RECORD AND MAJOR FACTORS AFFECTING THE PROJECT

Implementation Experience

5. On the whole the project's implementation record was satisfactory, though uneven withsome components doing better than others. On account of the devaluation of the Malawi Kwachaagainst the SDR, over US $41 million was available to the project (the total sum of the credit was$36.9 million) and 99.5% of that (or US $ 41.2 million) was disbursed. The remaining amount(about US$193,000) was canceled. The closing date was extended twice (for one year each time)to allow for delays in the start up of the project and in order to complete components that were atadvaniced stages of implementation. The PIU took its experience with previous projects intoaccount to ensure that the classrooms, staff houses and other civil works were simple andfunctional in their design and their construction was of acceptable quality. With the exception oftwo or three small contractors whose contracts had to be canceled and retendered for theirpersistent delays and poor performance, the contractors on the whole performed well and weresupervised on a regular basis by technical staff from the PIU.

Achievement of Project Objectives

6. As a whole the project was satisfactory in achieving its development objectives. Threecomponents, rehabilitation of primary school classrooms, preparation and distribution oftextbooks and teachers' guides, and upgrading of primary school teachers through an innovativespecial teacher education program (MASTEP) achieved or even exceeded their objectives. Detailsof achievements of the various components, grouped by sub-sector, are discussed below.

2

Implementation Completion Report Part 1: Project Inpletnentation AssessmentMalawi - Education Sector Credit II

Primary Education

7. Curriculum Review, Textbook Preparation and Distribution. Following an intensivereview of primary school curriculum, the project assisted the preparation of instructional materialbased on the new curricula. Project achievement with regards to the preparation, production anddistribution of primary school textbooks and teachers' aids was highly satisfactory. At appraisal,the project envisaged the provision of textbooks and teachers' guides in the four principal primaryschool subjects (namely, Chichewa, English, Arithmetic and General Studies) for only StandardsI to 4. In the course of project implementation, coverage was extended to include standards 5through 8, utilizing funds reallocated from the component for school broadcasting which wasdropped. The technical capacity and expertise of the staff at the Materials Production Unit of MIEwas strengthened substantially, enabling MIE to successfully complete the preparation and trialtesting of over 63 titles of manuscripts for Standard I to 8 pupils' books and teachers' guides untilCamera Ready Copy (CRS). Over 7 million copies of pupils' books and 208,000 copies ofteachers' guides were printed through ICB and distributed to schools through the PIU and theDistrict Education Offices.

8. Teacher Training and Upgrading. Project achievement in upgrading primary schoolteachers was satisfactory. A total of 4,300 primary school teachers (compared to the appraisaltarget of 4,500) were provided in-service courses to upgrade their teaching skills and academiclevel through a special teacher training program, known as the Malawi Special Teacher EducationProgram (MASTEP) developed under a previous project (Cr. 1767). The program consisted of athree-year program that combined short residential courses at teacher training colleges withsupervised teaching in primary schools and seminars in the field. Learning modulcs preparedspecifically for the program covering both content and teaching methods were utilized,supplemented by handouts and taped lectures. The program received positive ratings by an DflDmid-term evaluation team in 1994 as well as by CERT at the conclusion of the program. Theprojcct was also successful in expanding the output of pre-service teachers training by expandingthe capacity of Montfort Teacher Training College from 160 to 540 places.

9. Primary School Radio Program. At appraisal, the project contained a provision forimproving primary school radio programns. Technical assistance (12 staff years) wore provided forestablishing a Primary School Broadcasting Unit (PSBU) and for training Malawian counterparts.The project envisaged a pilot test to measure the cost-effectiveness of the program as well asannual evaluations. Following the result of the pilot test, the Government concluded that therecurrent cost implications of the program would be unsustainable if the scheme were to bereplicated at a national level and decided, with the Bank's concurrence, to drop the componentaltogether.

10. Improvement in Measurement vfAchievement. The project's achievement wassatisfactory in assisting the Malawi National Examinations Board (MANEB) in developing andincorporating standardized multiple-choice items as an integral part of the primary school leavingexaminations. The project expanded MANEB's computer capacity and provided Malawian senioras well as junior technical staff with expertise in the field of tests and measurements. Expatriatetechnical assistance staff planned under the project was instead provided by DflD.

11. Primary School Supervision. The project's achievement to strengthen primary schoolsupervision was unsatisfactory. The Government provided 30 inspectors (through redeploymentof staff) as planned, and 60 motorcycles were procured from the proceeds of the credit, but the

3

Implementation Completion Report Part I: Project Implementation AssessmentMalawi - Education Sector Credit II

inspectors were unable to undertake frequent inspection visits because of shortage of recurrentbudget. The Govemment and the Bank are pursuing a more intensive strategy to strengthen theinspectorate in a follow-up project.

12. Primary School Rehabilitation. The project's achievement in rehabilitating primaryschool classrooms was highly satisfactory. At appraisal, the project intended to provide roofingsheets to 228 unroofed and unusable primary schools. With the sudden and massive expansion ofprimary school enrollment in 1994 (over I million additional children were admitted to primaryschool in just one year when school fees were abolished). The Bank responded by expanding thescope of this particular component to include not just re-roofing but a complete rehabilitation ofunusable classrooms almost ten times the original number. Over 2,000 classrooms were providedwith newv roofs, their floors were resurfaced in most cases, and their overall structure strengthenedby providing them with concrete (or in some cases steel) beams. As a result the classroomsimproved not only qualitatively, but were able to accommodate an estimated 100,000 additionalpupils. The devaluation of the Malawi Kwacha against the SDR enabled the Government and theBank to successfully complete this undertaking.

13. Furniture and Equipment. The project's achievement in the provision of firniture andequipment was unsatisfactory. Only a negligible amount (about 4%) of the furniture planned atappraisal was provided (3,000 out of a planned 75,000). As a result of the massive expansion ofprimarn school enrollment, the Government's highest priority was provision of classrooms.Funds allocated for this component was used for classroom rehabilitation.

Secondary Education

14. The project's achievement in expanding access to secondary education was partiallysatisfactory. Ten new two-stream Distance Education Centers were completed, thereby creating3,200 new student places. MOE has converted the Centers into day secondary schools, consistentwith new policy changes in secondary education. The quality of instruction, however, is not at pareven with other Malawi secondary schools, as the institutions lack laboratories and secondaryschool textbooks. The project's achievement was unsatisfactory regarding curriculum reform,provision of instructional materials and strengthening school inspection at the secondary level asvery little was done in these areas beyond preliminary seminars, procurement of few science kitsand a limited number of library books. Vehicles procured under the project for school inspectionare facing the same problems encountered by the district officers at the primary school level;namely. a lack of adequate funds for fuel and maintenance.

Post-Secondary Education

15. The project's achievement in its assistance to the Faculty of Commerce at the Polytechnic(University of Malawi) was partially satisfactory. Under the twinning arrangement with the CityUniversity of Dublin (CUB), and the University of Saskatchewan, staff taught various courses inthe areas of finance, management, marketing and small business enterprises at the Faculty ofCommerce for a total of 12.5 staff-years. Lecturers from the Faculty of Commerce undertookpost-graduate studies in management and finance-related fields at CUB. Only the fellowship(staff training) component of the twinning arrangement with the University of Saskatchewan wasimplemented. These staff exchange anld training schemes together with the local teachingmaterials developed by the visiting staff and teaching equipment (mostly computers) procured

4

Implementation Completion Report Part I: Project Irnplementation AssessmentMalawi - Education Sector Credit II

under the project have helped to improve the quality of the Faculty of Commerce. There was alsoa modest expansion of output of accountants, from 50 to 65 per year. Due to a high staff turnoveras well as inadequate funding for research, the Faculty of Commerce has yet to develop into amature academic community of students and scholars.

Institutional Development.

16. The project's objective to strengthen educational management at the regional and districtlevel was partially attained. With the help of project in-puts, particularly local training, seminars,of operating costs and staff houses for district inspectors, MOE was able to initiate the first phaseof its decentralization plan. Accounting and personnel functions are being devolved to regionsand districts and some fifteen zones have been established to facilitate the work of schoolinspectors and supervisors. Sustained assistance over a longer period of time, as well as concertedeffort and commitment on the part of govemment is required to attain full scale decentralization.Follow-up projects by IDA and other donors (notably DflD and GTZ) are pursuing theseobjectives with additional assistance to help strengthen district and regional education offices.

Resource Mobilization.

17. The project sought to implement policy changes which would increase the resourcesavailable to the sector. The main policy objective in this regard was to increase education's shareof total govemment recurrent budget from about 11% at appraisal to 15% by 1994-95. Thisobjective was attained, and even exceeded as education's share stood at 23.8% of totalGovemment recurrent expenditure bv 1994-95 and about 25.2% in 1997-98. The other policychaniges aimed at increasing tuition fees in secondary schools and at the University. increasingboarding fees and discontinuing provision of free exercise books and writing materials insecondarv schools. These policy changes have been partially attained. Tuition and boarding feeswere increased in secondary schools and at the University. With regard to boarding, theGovcmment went farther to adopt day secondary education as official policy. Free provision ofexercise books was discontinued in 1991 but reinstated in 1995 when primary schools fees wereabolished by the new govemment under a multi-party system. Some of those policy changes maynot be directly attributable to the project, but the project did serve as the main vehicle for the Bankand the Govemment to pursue policy dialogues for mobilizing additional resources to the sector.

18. Factors not generally subject to government control. Malawi continued to face seriouseconomic and financial constraints during the period the project was under implementation (1990-1998). These included two major droughts (1992 and 1994) and falling tobacco prices. Thesesetbacks cumulatively resulted in a loss of more than 25% in annual GDP, according to Bankestimatcs. These constraints were further compounded by disruption in extemal assistance thatlasted I 8 months (1992-1994) as donors reacted to poor govemance and the need for politicaldemocratization.

19. Factors generally subject to government control. In 1994 a major macroeconomic crisisdeveloped in the months preceding the first multi-party elections in the country resulting in deepdepreciation in the exchange rate and falling public revenues. Remedial actions were instituted bythe Govemment with the help of the IMF and the situation improved, though it continued toremain fragile. As the govemment's financial constraints worsened, it was forced to introduce"cash budgeting" which meant that Govemment could release funds on a monthly basis equal to

5

Implementation Completion Report Part : Project Implementation AssessmentMalawi - Education Sector Credit II

the amount of revenue collected the previous month. This exacerbated the local funding situationfor the project as the Project Implementation Unit (PIU) found it difficult to pay civil workscontractors the local share (20%) of their contracts. Further, the abolition of school fees in 1994and the resulting massive increase in school enrollment (total primary school enrollment grew byover I million pupils in just one year) added an excessive burden to an already over-stretchedMOE. Various organs of MOE, including the PIU, were asked to provide assistance (e.g.construction material, technical services), thereby adding additional burden to their regular projectimplementation duties.

20. Factors subject to the control of the project implementation unit. At the beginning, thePIU did not have the requisite technical staff with the appropriate qualifications (architects,accountants, quantity surveys, etc.) Also, the Unit was still involved in the implementation of thefinal phases of the First Education Sector Credit (Cr. 1767). Inevitably, implementation of thisproject was delayed by these factors. Starting in 1992, a full contingent of technical staff(includinig an experienced project manager) were appointed and, with the completion of Cr. 1767,the pace of implementation picked up significantly.

D. PROJECT SUSTAINABILITY

21. The project assisted institutions were an integral part of MOE and of the sector as awhole. Hence, their sustainability is closely linked to that of the sector as a whole. Taking severalfactors into consideration, the project is likely to be sustained for the foreseeable future. The mainfactor that enhances the project's sustainability is the Govemment's strong commitment,exemplified by the large and rapid increase of its allocations to education and the social sectorsgenerally. Allocations for education have increased by more than two-fold over the last decade,from about 11% of total recurrent budget in 1988/89 to about 23.8% in 1994/95 and 25.2% in1997. While these increases will enhance the system's sustainability in physical and quantitativetemnis Govemment recognizes the need to introduce additional measures to upgrade the quality ofeducation to an acceptable level, and is pursuing those policies. These include: increased costrecovery at post-primary (and especially post-secondary) level, community involvement in schoolconstniction and maintenance, more day secondary schools, more affordable school designs andconstruction, and more cost-effective approaches in teacher training. These policy objectives havebeen incorporated in the Govemment's Policy Investment Framework for the sector which is at anadvance stage of preparation by Govemment in collaboration with the Bank and other donors,including USAID, DfID, and GTZ. Follow-up Bank projects (Primary Education, Cr. 2810-MAIand Secondary Education, Cr. 305 1-MAI) have also incorporated various features of those policymeasures.

E. BoRROWER PERFORMANCE

22. On the whole, the Borrower's performance during project preparation and implementationwas satisfactory. As part of project preparation, the Borrower updated its public expenditure planfor the second phase of its ten-year development plan, and articulated its policy reform strategiesand action plan. These were attached as annexes to the staff appraisal report. It also prepared thefirst phase of its plan to decentralize education services to regions and districts. The Borrower'sperfomlance during implementation was on the whole satisfactory. During the early stages ofimplementation, the PIU did not have the full complement of qualified technical staff, includingan architect, accountant or procurement officer familiar with the Bank's procurement guidelines.

6

Implementation Completion Report Part 1: Project Implementation AssessmentMalawi - Education Sector Credit II

The situation was greatly improved during the second and third years of implementation whenGovenmment hired with project funds Malawian technical staff with the requisite qualifications(two architects, a quantity surveyor, an accountant/financial analyst as well as an experiencedproject manager).

23. The PIU regularly sent semi-annual progress reports that proved valuable for Bank staff tomonitor implementation status. On the whole, the PIU prepared annual project accounts on atimely manner but auditing of the accounts by the Government and hence annual audit reportsfaced persistent delays. Counterpart funds were often delayed and slightly below plannedamounts: total govemment contribution amounted 8% of project costs (instead of 10% asoriginally planned). In view of the major devaluation of the Kwacha during the period the projectwas implemented (from MK4 to the US$ at appraisal compared to MK25 to the dollar at projectcompletion), the Government made a serious effort to meet its counterpart obligations.

24. Beginning in 1996, in an effort to standardize the terms and conditions of staff hired inBank-financed projects in Malawi, the Govemment, with the Bank's concurrence, introducedrevised salary scales which in some instances were lower than what some PIU technical staff werepaid from project funds at the time. This led to the resignation of two key PIU staff (projectaccountant and an architect). In addition, as part of the Bank's efforts to strengthen projectimplenmentation capacities of line ministries, the Govemment and the Bank agreed on newimplementation arrangements (that included subcontracting certain activities such as civil worksto private contractors). Accordingly, the two follow-up projects which were approved in 1996and early 1998 (before the closing date of this project) are being implemented by a small unitdirectly under MOE instead of the PIU. The PIU however will continue to implement otherdonor-funded projects (including those of AfDB).

F. BANK PERFORMANCE

25. Bank performance during preparation was satisfactory. A detailed analysis of the sectorincluding costs and financing was prepared and served as the basis for discussion with thegovernment regarding funding levels for the sector. At appraisal several potential risks wereidentified including: budgetary constraints, and relatively weak implementation capacity,especially at the district and regional levels. Measures that were expected to mitigate those riskswere identified, but in retrospect the Bank was too optimistic especially about implementationcapacity in the sector.

26. The Bank's performance during supervision was satisfactory. Supervision missions weremounted regularly. Judging from the aide memoires and other documentation those missions leftin the field, the Bank has provided timely assistance and guidance to the borrower in the course ofproject implementation. The Government's decision to drop a major component (PSBU) wasarrived during supervision in 1993, following a detailed costing of the project and evaluation ofthe pilot phase of that component. As a result, the government was able to reallocate the fundsreleased to higher priority areas in time to prepare and distribute textbooks for Standards 5 to 8,which were not provided for originally.

7

Implementation Completion Report Part 1: Project Implementation AssessmentMalawi - Education Sector Credit II

G. ASSESSMENT OF OUTCOME

27. Overall, the project's outcome was satisfactory. This is especially the case as regardsmeeting the quantitative targets. The project had impact particularly in the following three areas:a) developing institutional capacity at MIE for the development of primary school textbooks andteachers' guides, b) rehabilitation of primary schools, and c) implementing a new and innovativemode for training primary school teachers (MASTEP).

28. Primary school textbooks. The project has assisted MIE in acquiring institutionalcapabilitv for: (i) designing new curricula and syllabi on which the new textbooks were based; (ii)writing/developing new instructional materials; (iii) designing and illustrating textbooks usingsome of the latest desk-top publishing skills; and (vi) providing in-service training for teachers inthe use of the new books. This was achieved through internal training, study tours/attachments,procurement of desk-top publishing facilities and provision other facilities such as staff houses,vehiclcs and some operating funds. Rehabilitation of Primary Schools. At the time the projectwas appraised, this was a relatively small component intended to re-roof 228 classrooms andabout 400 teachers' houses. However, when school fees were abolished in 1994 resulting in amassive increase in primary school enrollment, construction and rehabilitation of classroomsbecame MOE's most pressing concern. Accordingly, the project provided a timely assistance inthis regard with the rehabilitation of over 2,000 classrooms in all parts of the country. TheGovernment's contribution to this ICR specifically identifies this component as having made "avers big difference in the lives of the pupils". Teacher Training. The MASTEP program had amajor impact in the sector not only in terms of providing in-service training for over 4,000primarv school teachers, but especially in inaugurating a new approach for upgrading teachers.Hitherto, teacher training was done mostly through residential courses that sometimes lasted twoyears or more. MASTEP's strategy of upgrading teachers through a combination short residentialcourses supplemented by in- school supervised teaching and seminars in the field is now wellaccepted in the country and was replicated, with some modifications, in the new MalawiIntegrated In-service Teacher Education Program (MIITEP) currently under implementation undera follow-up project Bank-financed project (Primary Education) as well as by projects funded byothers donors, DfID and GTZ in particular.

H. FUTURE OPERATIONS

29. MOE is in the final stages of finalizing a detailed Sector Investment Plan (SIP) which isintended to serve as the framework for investment in human resources by the govemment and alldonor agencies in the future. Donor agencies active in the sector (which includes DflD, USAID,GTZ. AfDB, DANIDA, JICA, in addition to the Bank) meet regularly with MOE officials. Thishas served as a useful forum for the Govemment to present successive drafts of the SIP for thetheir review and comments. In the meantime, pending the finalization of the SIP, the Bank hasapproved two projects that finance discrete investments in primary and secondary education thatare manifestly within the SIP's overall objectives and resource confines. ODA, AfDB and GTZare doing likewise. Govemment continues to demonstrate a strong commitment to humanresource development. About 25% of the Govemment's total recurrent budget is allocated toeducation, a clear testimony to that commitment. There is virtually no scope for Govermnent toincrease its allocations beyond present levels. Thus future Bank operations in the sector aretaking this resource constraint into account in designing projects that promote such measures as

8

Implementation Completion Report Part 1: Project Implementation AssessmentMalawi - Education Sector Credit I!

increased cost recovery especially at post-secondary level, community involvement in schoolconstruction and maintenance, affordable school designs, non-boarding secondary schools, andmore cost-effective approaches in teacher training ( such as MIITEP).

30. Toward the end of project implementation, the Bank learned that publishing and re-printing rights for some of the textbooks developed under the project had been transferred toprivate publishers. While in principle the Bank has no objection to private sector participation intextbook publishing and printing, it has expressed its concern to MOE that this was done withoutclear and open competition, and may therefore adversely affect the Bank's future participation infinancing procurement of textbooks following ICB procedures.

1. KEY LESSONS LEARNED

31. A number of lessons can be drawn from the experience of implementing the project, ofwhich the principal ones are as follows:

• Flexibility in Project Implementation. Flexibility during implementation is critical inresponse to new and pressing developments in the sector. The Bank demonstrated flexibilityin responding to the government's urgent request for rehabilitating 2,000 classrooms, almostten times than had been planned at appraisal. This has been duly acknowledged in thegovernment's contribution to this ICR and confirms the critical importance flexibility inproject implementation. There was also flexibility in concerting school broadcasting in lightof the results of a pilot program undertaken.

- Simplicity in Project Design. Great weight should be given to assessing implementationcapacity in the sector and the project should be kept simple and focused whereimplementation capacity is a concern The project was designed as a sector wide operationwith a large number of components. This was a common feature for Bank education projectsat the time (late 1980s). Implementation capacity in the country did not allow for somecomponents (e.g. secondary education) to be given the same level of effort on the part of theBorrower as the other components (e.g. primary and teacher education).

* Institutional Development. Successful institutional development initiatives requiresustained assistance in the course of successive projects. This was the case with the MalawiInstitute of Education which had benefited from Bank assistance over three or four Bankprojects in the course of at least ten years.

* Implementation Staff. Implementation of this project underscores the need to have a fullcomplement of implementation staff in place before a project is launched. The ProjectImplementation Unit did not have technical staff with the requisite qualification (architect,quantity surveyor, accountant) when the project was initiated. This resulted in delayingproject start-up by more than a year, which in turn resulted in the need to extend the closingdate by two years.

9

PART II: STATISTICAL ANNEXES

Table 1: Summary of Assessments

Substantial Partial... Negligible - Not Applicable

A. Achievement of Objectivesmacro policies Xsector policies Xfinancial objectives Xinstitutional development Xphysical objectives Xpoverty reduction Xgender issues Xother social objectives Xenvironmental objectives Xpublic sector management X

.____________ _ Likely Unlikely Uncertain _

B. Project Sustainability X

Highly Satisfactory Deficient HighlySatisfactory Unsatisfactory

C. Bank Performanceidentification Xpreparation assistance Xappraisal Xsupervision X

D. Borrower Performancepreparation Ximplementation Xcovenant compliance Xoperation X

E. Assessment of Outcome X

10

Implementation Completion Report Part lI: Statistical AnnexesMalawi - Education Sector Credit II

Table 2: Related Bank Loans/Credits

-.. .. -- -. ...,,.-- C:redit -:,,.,, Achievement/Purpose Year of.-- Amount- Statu SApproval US$

102-MAI Secondary school expansion, primary teacher training, 1967 Non Closedintroduction of technical subjects in secondary schools available 3/80

590-MAI Primary teacher training, expansion of secondary education 1975 Non Closedand establishment of "model" primary schools available 6/82

9 1 0-MAI Expansion and improvement of primary education; expansion 1979 14.5 Closedof primary teacher training: expansion of 5/86correspondence/distance learning facilities: establishment ofInstitute of Education (for teacher upgrading) andstrengthening educational management and planning

1123-MAI Enrollment expansion in secondary schools, and increased 1981 41.0 ClosedFourth output of secondary school teachers from the university was 12/86Education achieved. The National Education Plan was successfullyPro,ject completed and was put to good use.1330-MAI Expansion of primary teacher training, secondary school 1983 30.9 ClosedFifth enrollment including MCDEs and enrollment of accountancy 9/90Education students was successfully achieved. Heavy reliance onPro,ject expatriate staff for project implementation was noted.1767-MAI Primary school expansion and quality improvement: 1987 27.0 ClosedFirst expansion of secondary schools; and institutional 12/93Education development.Scctor Credit

Following Operations2810-MAI Improve the quality of primary education by providing 1996 22.5 InPrimary teaching and learning materials, and pedagogical support to progress.Education in-service training for untrained teachers. 1999 isProject the

scheduledclosing

______________ ~~~~~~~~~~~~~~~~~~~~~~~date.2856-MAI Poverty alleviation through the construction of demand-driven 1996 56.0 InMalawi Social social infrastructure (including schools) progress.Action Funld 2001 is

thescheduledclosingdate.

M W-PA- 1670) Expand access tlrough constniction of secondary schools; 1998 48.2 InSecondary improve educational quality secondary schools through progress.Education provision of teaching and learning materials; improve 2003 isProject efficiency and effectiveness of the secondary education system the

by strengthening school-based management through training scheduledstrengthen project implementation capacity through technical closingassistance; support Governmcnt's policy to encourage private date.secondary schools, and provision of training and materials to

I stem the spread of HIV/AIDS among teachers and students.

I1I

Implementation Completion Report Part Il: Statistical AnnexesMalawi - Education Sector Credit II

Table 3: Project Timetable

Projet Phase- P-anneid Actiua DateIdentification Mission March, 1988 March, 1988Preparation Mission October, 1988 October 1-21, 1988Appraisal Mission February/March, 1988 March, 1989Negotiations September, 1989 September 6-10, 1989Board Approval December, 1989 December 21, 1989Signing March, 1990 April 6, 1990Credit Effectiveness April 19, 1990 April 19, 1990Completion Date December 31, 1995 December 31, 1997Closing Date June 30, 1996 June 30, 1998

12

Implementation Completion Report Part I1: Statistical AnnexesMalawi - Education Sector Credit II

Table 4: Cumulative Estimated and Actual Loan Credit Disbursements(US$ Millions)

Bank FY- - 1990 1991 1992 1993 1994 1995 -1996 1997 1998Estimate 0.0 4.9 12.9 24.9 30.9 35.9 36.9 l

Actual 0.0 4.1 10.3 13.7 17.1 19.5 27.4 33.8 41

Actual as % of Estimate 0 84% , 80% 55% 55% 54% 74% 92% 111%Date of Final November 10, 1998Disbursement .

Note: Actual disbursements are given as their historical US$ equivalents. The current cumulativedisburscment exceeds the total value estimated at appraisal, due to fluctuations of the Malawi Kwacha andthe US dollar against the SDR.

13

Implementation Completion Report Part II: Statistical AnnexesMalawi - Education Sector Credit 11

Table 5: Key Indicators for Project Implementation

COMPONENT UNIT SAR ACTUAL COMMENTS...... . ...... ...... ESTIM AT

' ' ' ''- ' ' ' -' ' ' ' 'i' .! ''' .......................... .F j j ... !. i F s~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~. .. .. .. .. .. .. .. .. ... ..

Curriculum Revision, Material Development, and In-Service Training (M IEE)__ _ _ _ _ _ __ _ _ _ _ __ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _

TA for specialists in reading Staff-years 2 None Already had staft in place.TA for specialist in evaluation Staf'f-years 2 None Already had staff ini place.Local staff Position 3 None Funds used to train local staff:Provision of staff houses Number D p6 6 6n-Vehicles (including one bus) Number 2 2

Teaching/Learning MaterialsrstDevelopment and Production of Texts and Guides Std 1-4 Standard 1-4 63 titles, Used diverted funds from the broadcasting component.

only Standards 1-8- teachers' guides (by standard/type) Number 208,000- text books (by standard/type) Number 7,214,000Appoint Publishing Manager Staff-years 4 5Appoint an editor with Desktop Publishing (DTP) Staff-years 4 2 Expatriate TA for 2 years onlyexperience.__ _ _ _ _ _ __ _ _ _ _ _ _ _ _ _ _ _ _

Purchase PC's Numdber 2 3 Addition of Stds 5-8 required an additional computerPurchase AT computer equipped with DTP facilities Number 1 2 Addition of Stds 5-8 required an additional computerSets of low-cost, local, simple teaching aids for Standard I Number (sets) 3,000 13,000 Major expansion of Stds/enrolhnent

I Develop, produce and distribute a new series of teachers guides and textbooks for Std 1-4 in Eng., Chich. and Math and Gen0Science for Std 24. Later extendedto include Stds 5-8 when the component for primary school broadcasting was dropped.

14

Implementation Completion Report Part 11: Statistical AnnexesMalawi - Education Sector Credit 11

COMPONENT UNIT SAR ACTUAL COMMENTSESTIMATE ..

Teacher TrainingIn-service training using special program being developed Number 4.500 4,300 Weak supervision. Some dropouts and dismissals.under Credit 1767-MAI Helped in designing the MIITEP program. Cost higher

than anticipated due to salary increase and allowances.

Expert assistance in education tech Staff year 1 None None required.Short-term fellowships for college tutors Stafl year 2 None Not carried out.

Fund operating costs of the program For 1 year YesFund salary of the project Director Yes YesFirst year cost of the salaries for the trainees Yes YesPart of the subsequent salary costs of trainees with MOE Yes Yesabsorbing trainees' salaries on a sliding scale.MOEC assessing trainees' performance and retaining only Yes Not undertaken Substituted by other studies done by CERT (refer tothose with satisfactory performance in the teaching force. Table 7).

Expand an existing Teachers' Training College (Montfort Number of 360 380 Enrollment is usually higher than official rates.College) Additional Enrollment increased from 160 to 540.

PlacesTwo vehicles for the Teacher Training College (Montfort Number 2 2 One bus instead of another type of vehicle requested andCollege) granted.Continuous assessment of learning Yes Partially done MANEB does continuous assessment of learning

Improve the School Broadcasting SystemDevelopment of New Programs (for new curriculum) Pilot only Consult. for pilot. Consultants hired for the pilotExpansion in broadcasting facilities at MBC Not undertaken Component dropped before it went full scaleSolar powered radios Number 5,000 60 .

TA to develop system & train local counterparts Staff-years 12 2 "

Running costs of program with Government absorbing the Yes Yes Credit Funded during pilot.cost on a sliding scaleYearly evaluation Yes Yes Evaluation for pilot phase only.

15

Implementation Completion Report Part H1: Statistical AnnexesMalawi - Education Sector Credit 11

COMPONENT UNIT SAR ACTUAL commENTSESTIMATE

Improve the Measurement (if Achievement at thePrimary Level (MANEB)

Testing and measurement specialist to develop national Staff-years 2 2* ODA funded for 3 years before credit effectiveness.assessment test, train local counterparts

Funds for upgrading the computer system for Yes Yesadministration of the assessment test.Availability of local staff to work with the consultant Yes Yes I senior stalf & specialist trained a junior staffPrimary School SupervisionzProvide recurrent costs to 30 additional inspectors Number 30 30* Done via redeployment within the system; thus part of

Government's recurrent budget.Provide 60 motorcycles Number 60 60 Bought in 1991 and out ol'commission now.

Roofing sheets

Roofing sheets for unroofed classroom blocks classroom 228 841 blocks (2,218 Over 75% of the classrooms were rehabilitated fully inblocks rooms) addition to provision of roofs.

Roofing sheets for teachers houses in rural areas 406 None required None required

Furniture and EquipmentLow cost chairs and desks for Standards 1-8 sets 75,000 3,000 Due to bad per'ommance, contract was terminated and(3,000 classrooms, each class with 25 sets) time ran out. Following massive primary school

expansion in 1994, Government concentrated onclassroom construction

2 Govemment would take over the funding of the salaries of the inspectors gradually beginming in the third year. In addition, the Government would arrange for

servicing of the vehicles by vehicle maintenance depots.

16

Implemnentation Completion Report Part II: Statistical AnnexesAMlalawi - Education Sector Credit II

ESTIM .T . .

SECONDARYLEVEL:

Expansion of AccessNew double-stream Distance Education centers & furniture Number - 10 DECs - 10 DECs The 10 DECs provide 3,200 new places, though

- 10 Staff - 40 staff houses. enrollment may be up to 50% more. All have beenHouses converted to day secondary schools. 30 more staff

houses (4 per DEC instead of 1) have been constructed.3 contractors defaulted. Issue of too low bidding,leading to escalated cost when retendering. The Bankshould reconsider its lowest bidding procedure,according to PIJ.

Curriculum Revision and Instructional MaterialsProvision (MIE)Workshops for secondary curriculum review by MANEB Number Not specified I workshop for No major progress done, due to shortage of funds. The

one week for 120 budget requested was too big.persons.

Development, Production and distribution of low-cost Not specified Study Study undertaken, but no local production of kits.science equipment and kits undertaken. Instead 50 complete science kits were bought via ICB.

50 kits provided3 months training w/in Africa for 5 technicians Statt years 1.25 Refer to study MIE requested to do study tours and in-service training.

tours, in-servicetraining below

Study tours and attachments staff years None 2.5 Added at the request of MIEIn-service Training number Not specified 190 150 writers, 20 editors, 15 artists/illustrators and 5

typesetters.

Restocking of school libraries Number Not Specified - 9,360 Math & 2 out of 11 subjects (Math and English) bought.-50,160 English Requested number of books per subject was large.books I

Training program for school librarians Yes Not undertaken Trainee librarians not selected in time

17

Implementation Completion Report Part II: Statistical AnnexesMalawi - Education Sector Credit II

_ . .~~~~~~~~~~~~~~~~~~~~~~~~M

(~~OMPoN~.NT UNIT SAR ACTUA . .MMNT

Supen,isionVehicles to be located at Regional Education Offices for Number 6 12 vehicles w/ Procured as plannedsupervision by Faculty of Education when supervising basic parts.teacher trainees -6 for inspectors

-6 for Adm.n.

Faculty of Commerce _Technical assistance Staff-years 12 12.5 In accounting, finance, management, marketing and

small business enterprises.Overseas fellowships under a twinning plan with an staff years 15 16overseas universityProvision of business computers, software with peripheral Number 15 75 Included refurbishing the computer rooms.equipmentIncrease in the number of local graduates in finance and Number From 50 to 65accounting students per yearProduction of locally based case-studies Yes Handout form Can be easily bounded and passed on.Review and refomm of teaching curriculum in accounting Yes Partially Progress slow due to staff turn-over.and finance completedStrengthen locally based lecturing capacity Yes No No incentive for Malawian lecturers to undertake non-

teaching assignmentsNomination of link coordinator at both universities Yes YesFumished quarters for visiting TAs Yes YesAnnual reports _ Yes Yes

18

Implementation Completion Report Part II: Statistical Annexes

Alalawii - Education Sector Credit II

COMPONENT COEUNT - AR - CTUAL CO ET.ESTIMATE

INSTITUTIONAL DEVELOPMENT

Strengthen Education ManagementOperational costs of workshops to assist in accounting Yes Yes Workshop were funded by the projectdecentralizationIn-service training of headmasters and principals in school Yes Yes Done by MPEMBA, MIM and MIEmanagement techniquesFund modest staff houses in rural areas for district school Number 28 28 District Inspector Houses completed in each of the 28inspectors and three regional coordinators of the special districtsprimary teacher training program.Salaries of accounting and staff development personnel for Number 21 21* Government paid as established posts.the regional officesMOE carries out the first phase of its decentralization plan Yes Personnel, Accounting and Inspectorate functions were

____________ partially decentralized.

MOE implements the new rules for admission to standard Yes Rules for admission were instituted.1, and repetitionMOE adopts a plan to reduce the scope of the curriculum Not carried out due to fund shortage.for secondary schools

Strengthening Education Planning

Finance for a series of short-term Consultancies3 Staff-years 2 2 Some funding from the credit, but mostly financed byUNESCO and USAID.

Fund salaries for tive years of 4 education planners within Staff -years 20 20* Government paid as established posts. Problem of highthe Planning section of the Ministry, including one senior turnover of planners persists.staff, and one responsible for monitoring and evaluation.Fund an additional position of a statistician Number 1 1 Government-paid as established post.3 years in-service training to diploma level for 10 Staff-years 30 No No follow-up.additional statistical assistants at he University

Short courses for the Planning Unit Yes Yes Through project funds and USAIDD.

3Consultancies are to assist in locally organized workshops aimed at improving the quality of the planning process at the national, district, and regional levels.

19

Implementation Completion Report Part II: Statistical Annexes

Malawi - Education Sector Credit II

COPNN UN. _.ATA ~MET

| ., k,0 2z k t=nhx t- RSSS ....... -I Si-iO,,0-- 0X.,,.,. ,. m ." g,0 , t.............. ... ......... ...i E

Strengthening PIUTA of an architect Staff-years 4 8 For two architects.TA of a quantity surveyor Staff-years 4 6.5 Contract extended when project closing date was

extendedFellowships (5 architects, 5 QS in African University) Statf-years 10 3.5 Only for ArchitectOperational expenditure for project administration Yes Yes Stationery, fuel, car maintenance, recurrent costsexcluding local salariesSupport of the school maintenance unit of the PIU Yes Yes Septic tanker, and some recurrent costs.TA for financial analyst Staff-years 2 2Funding for Projects Manager Staff-years 5 6.5 Contract extended when project was extendedShort courses locally and w/in Africa - Staff-weeks Not specified 80 Mostly local seminars

TA for a full time researcher Statf-years 3 3Short term research Consultancies Staff-rnonths 6 6Funding of the operating costs of the CERT Years 3 3 Research related funding only.Fund on-going research on primary school quality and 3 studies 12 studies The 3 mentioned studies were undertaken by MOE;tracer studies of secondary school students, and new CERTIUSAID/UNICEF and CERT/MIE. Instead, otherstudies on gender differences in school achievement and researches were undertaken (see Table 7 below).on the factors affecting absenteeism with particularattention to the timing of the school year

* Note: These components were not undertaken through the credit

20

Implementation Completion Report Part I: Statistical AnnexesMalawi - Education Sector Credit ll

Table 6: Key Indicators for Project Operation

Project Impact to be Maintained Follow-up Actions Being Taken Issues Outstanding1. Teacher Training-UpgradingA modified and improved version of the Under a follow-up project (Primary The residential component of MIITEP isnew model for upgrading teachers Education Project), IDA in collaboration progressing well. The field training andintroduced under MASTEP has been with other donors is assisting the supervision component of the programadopted by MOE as the country's main Government in implementing the Malawi need further strengthening.vehicle for in-service teacher training. Integrated In-service Teacher Education

Program (MIITEP), a modified version ofMASTEP.

2. Provision of Primary School TextbooksProvision of over 7 million textbooks and Under a follow-up project (Primary Additional books will be needed toover 200,000 teachers' guides prepared and Education), textbook distribution is being replace lost-damaged books. Otherdistributed under the project has alleviated strengthened; also seminars on effective donors (e.g. Canada) will be assistingtextbook shortage. use of textbooks were organized for with copies reprinting of additional

teachers throughout the country copies to help with enrollmentexpansion and for replacement ofdamaged-lost books..

3. Provision of Primary School Classrooms.Project provided-rehabilitated over 2000 Additional 1,600 primary classrooms Government to implement effectiveprimary school classrooms and over 3,000 (each with a capacity 50 pupils) and 9,600 school maintenance policy for the newnew places in Distance Education Centers. secondary school places are being (and existing) schools.

provided under two follow up projects(Primary Education and SecondaryEducation Projects).

4. Resource MobilizationEducation's share of total government Education's share of government budget Education's share of budget unlikely tobudget was increased almost two-fold has been maintained or even increased a go beyond the present level (25.2 % ofbetween 1989 and 1995-6 (original project little since 1995. Follow-up Secondary total government recurrent expenditureclosing date). Likewise, tuition and Education Project is financing day in 1997-8). Mobilizing resources fromboarding fees were increased in secondary secondary schools, following the private sector and parents will need to beschools. govemnment new policy to no longer pursued vigorously.

provide boarding.

21

Implementation Completion Report Part I: Statistical AnnexesMalawi - Education Sector Credit II

Table 7: Studies Included in Project

:- Prpose as - -StatisE Impact or StdDfnedait-

Derined at App raisal___________1) Research on primary school Comipleted by MOE Used for GOM's Sectorquality and tracer studies of Policy Studysecondary school students _______ __________

2) Stutdies on gender differences in Comipleted, by CERT, Piloting of genderschool zachievement USAID, and UNICEF streamning, preparation of

GABLE project.______ _____ ______ _____ ___ _ ______ ____ ______ _____ _____ Still on-going.

3) Factors affecting absenteeism Completed by CERT Change in the academicwith particular attention to the and MIE year from September totiming of the school year ______ ________January.

Rederined-5

1) Secoindary School Quality Study Completed by MOE Under review by MOE2) Education Inputs That Make a Completed by MOE Under review by MOEDifferenice or Influence Quality _______and CERT3) MASTEP Evaluation Study Completed Used to plan the new in-

service primary teachers____ ____ __ ____ ___ ____ ___ program

4) The 10-year (1984-1994) Completed Helped in the preparationEducation Plan Evaluation Study of the Policy Investment

__________ Framework (PMF5) Double Shift at Secondary Completed Study under review byEducaition Level MOE.6) Double Shift at Primnary Completed Study under review byEducaition Level MOE.7) The Rate of Change in the Completed by MOE Not utilized efficiently.Newly Recruited Temporary and CERT Impact yet to beTeachiers in Adopting Survival assessed.Skills__ _ _ _ _ _ ___ _ _ _ _ _ _ _ _ _

8) Ani Alternative to the Current Completed Along with the USAIDDistribuition Pattern of Educational study, led to the creationMaterials to Schools _________of Supplies Unit9) Secondary School Discipline Completed Helped MOE developStudy rules of conduct for the

_____ ____ ____ ____ _____ ____ ____ ____ ___ _ ____ ____ ____school system .

4Nneof the 12 studies listed were included during Implementation. The topics of the other 3 werementioned but purpose not clearly defined.

5Noe:All but 2 and 9 were jointly done with the Ministry of Education Headquarters

22

Implementation Completion Report Part II: Statistical AnnexesMalawi - Education Sector Credit II

Table 8A: Project Costs(US$ Million)

Category SAR Estimate Revised Estimate Actual

GoM IDA Total GoM IDA Total GoM IDA TotalCivil Works 0.7 7.4 8.0 0.7 7.2 7.9 2.4 16.3 18.7Equipment, 0.4 11.9 12.3 0.4 13.9 14.3 0.1 9.1 9.2Funiitre, Vehicles,Books andMaterials _ _

Architectural and 0.1 0.6 0.6 0.1 0.3 0.4 0.2 1.2 1.4EngineeringServicesTechnical 5.1 5.1 3.9 3.9 0 3.2 3.2AssistanceTrainiing including 0.2 1.9 2.1 0.2 2.1 2.3 0.3 1.1 1.4Fellowships

Project 2.6 9.5 12.1 2.6 4.1 6.7 0.4 10.4 10.8Administration andRecurrent costsUnallocated I 0.1 l 0.6 0.7 0.1 5.3 5.4 0 0 0TOTAL 4.1 l 36.9 41.0 4.1 36.9 41.0 3.3 41.3 44.7Note: Numbers may not add up due to rounding

Fluctuation between the SDR and US$ explains the differences in total project cost.

Table 8B: Project Financing(US$ millions)

Appraisal Estimate Actual(US$ million): (S$ million).

IDA 36.9 41.2

Domestic Contribution 4.1 3.3

TOTAL 41.0 44.5

Note: Numbers may not add up due to rounding.Fluctuations between the SDR and US$ explains the difference in the amount financed by IDA.

23

Implementation Completion ReportMalawi - Education Sector Credit 11

Table 9: Economic Costs and Benefits

Cost-benefit analysis was not done and a net present value or an economic rate of returnwere not calculated

24

Implementation Completion Report Part 11: Statistical AnnexesMalawi - Education Sector Credit II

Table 10: Status of Legal Covenants

DCA Refemence Desip tion of Covenant Covenant Present Origin Actua, Comment. Type: : Stats al Date Dae

Artide 1, 1.01 (a) Not later than six months after the Closing Date or such later 9 C Complied with.date as may be agreed for this purpose between the Borrowerand the Association. the Borrower shall prepare and fumishto the Association a report or such scope and in such detailas the Association shall reasonably request, on the executionof the Program referred to in the Preamble to theDevelopment Credit Agreement the performance by theBorrower and the Association of their respective obligationsunder the Development Credit Agreement and theAccomplishment of the purposes of the Credit.

2.02 (B) Borrower to establish and maintain in U.S. dollars a Special I C Complied with.Account in a conmercial bank on terms and conditionssatisfactory to IDA

4.01 (a) Borrower to maintain records and accounts in accordance I C Complied with.with sound accounting practices.

4.01 (b) Borrower to have all records accounts, including the Special I CD Complied with but not on a timely fashion; alsoAccount, to be audited each year by independent auditors scope and detail of the audit reports not alwaysacceptable to IDA, and to furnish audit reports of adequate adequate.scope and detail, no later than six months after the end of theGovernment's fiscal year.

4.01 (c) For withdrawals made on the basis of statement of I C Complied with but not systematically.expenditures (SOEs), Borrower to maintain all recordsevidencing such expenditures; to allow IDA missionsreasonable access to those records; and to provide annualaudits as per Parm 4.01 (b).

Schedule 4, Para. 1 Borrower to use Project Coordinating Committee established 12 CP Partially complied with. Committee was established,under First Education Sector Credit for the coordination and but meetings were not held on a regular basis.monitoring of the policies contained under the sector

I program.

25

Implementation Completion Report Part I: Statistical AnnexesMalawi - Education Sector Credit II

DCA Reference Description of Covenant Covenant Present Origin Actual Comments--Tvpe Status at Date Date

Sdcedule 4, Paz- 4 By April 30, 1990, MOEC to prepare and submit for IDA s 9 C On the whole complied with. Plan for assessingreview a plan to determine the performance of trainee performance of teacher trainees was prepared. Butteachers; by July 30, 1990, MOEC to complete the govemment decided to use local teacher educationpreparation of appropriate teaching modules: and to hire a experts.teacher education specialist and to identify other short-termconsultants.

Schedule 4, Para. 5 Borrower and IDA to undertake annual review of 10 C Complied with but not formally.implementation progress by July 31 of each year, at thelatest.

Covenant: Present Status

1= Accounts/audits 8= Indigenous people C = covenant complied with2= Financial performance / revenue 9= Monitoring, review, and reporting CD= complied with after delay

generation from beneficiaries 10= Project Implementation not covered CP= complied with partially3= Flow and utilization of project funds by categories 1-10 NC= not complied4= Counterpart funding 11= Sectoral or cross sectoral budgetary5= Management aspects of the Project or other resource allocation

or executing agency 12= Sectoral of cross-sectoral policy/6= Environmental covenants regulatory/ institution action7= Involuntary resettlement 13= Other

26

lmplementation Completion Report Part ll: Statistical AnnexesAMalawi - Education Sector Credit II

Table 11: Compliance with Operational Manual Statements

Stateme-:t CommentNuimber and Title - _:_ _ _. _-_._:_:OD 10.60 The Bank requires appropriate accounting policies to ensure accountability for all funds ofAccounting, the borrower and submissions of audited financial statements for each fiscal year from theFinancial date agreed at negotiations.Reporting, andAuditing Accounts have been maintained for the project.OD 13.10 The Bank requires Borrower compliance with audit reporting and details the scope ofBorrower coverage by the audits.Compliance withAudit Covenants Audits were submitted for all the years though with some delays.OD 6.30 The Bank expects the Borrower to demonstrate commitment to the project by contributingLocal Cost 10% minimum (net of taxes and duties to the project)Financing andCost Sharing The Borrower's contribution amounted to 8% of total project cost as compared to the

projected level of 10% projected at appraisal.OD 13.25 The Bank allows, on an exceptional basis, some or all of the project savings to be used toUse of Project finance additional project activities not included in the original project description,Cost Savings provided that implementation of the project is satisfactory (including substantial

compliance with the Agreements), the activities proposed have high priority and areconsistent with project objectives, and that they have been fully appraised by bank staff,and financing these activities does not violate country limits on cost sharing.

The Development Credit Agreement was amended on July 29, 1993 to reflect thereallocation of the proceeds of the Credit, following the Govemment's decision to dropthe component on Primary School Broadcasting Unit and other anticipated savings. Thetotal amount that was reallocated was about SDR 2.8 million, of which half was utilizedfor extending the scope of the textbook component, and the remaining was mostly used forconstruction and /or rehabilitation of additional primary school classrooms. Thisflexibility in project implementation allowed the Bank to respond to high priority issues,including the large influx in primary enrollment following the abolition of school fees in1994 leading to an acute shortage of classrooms, teachers and related school in-puts.

OD 13.30 The Bank may approve for selected disbursements covering only part of a project toExtension of permit (a) implementation of some mutually agreed, high priority contracts; (b) theClosing Dates extension of the validity of letters of credit covered by a special commitment of (c)

provision for retention payments, when the conditions for release (e.g. completion ofperformance tests or expiration of a warranty period) are met after the closing date.

Closing date was extended twice on April 2, 1996 and April 30, 1997 because of delays inproject start up and to complete components that were at advanced stage ofimplementation..

OD 13.55 The Borrower prepares and makes available to the Bank its own evaluation on theICR Preparation project's execution and initial operation, cost and benefits, the Bank's and Borrower's

performance of their respective obligations under the loan agreement, and the extent towhich the purposes of the loan were achieved, adopts a plan for the operational phase ofthe project and assists the Bank in ICR preparation.

The Ministry of Education prepared its own evaluation of the project's achievements (theI report is attached to the ICR) and participated in the ICR preparation with the Bank team)

27

Implementation Completion Report Part H1: Statistical AnnexesMalawi - Education Sector Credit 11

Table 12: Bank Resources: Staff Inputs l/

Stage of Project Cycle Actual

Weeks US$'000

Pre-Appraisal 105.0 95.2

Appraisal-Negotiations 37.1 72.8

Supervision 151.6 443.6

Completion 12.3 11.9

TOTAL 306.0 623.5

I/ Source: MIS - World BankThe MIS shows planned resources data for only FY96-FY98

28

Implementation Completion Report Part H1: Statistical AnnexesMalawi - Education Sector Credit II

Table 13: Bank Resources: Missions

Stage of Month Number Days in Specialized Staff Implementa De} elopm Types of ProblemsProject Cycle IYear of Field Skills Represented tion Status ent

Persons ImpactPreparation 10/1988 10 21 2 Economists, 5

Education Specialists, 2Architects, FinancialSpecialist

Appraisal 3/1989 9 21 2 Economists. 4Education Specialists, 2Architects, FinancialSpecialist

Board to 1/1989 - 3 9 Economist, EducationEffectiveness 4/1990 Specialist, ArchitectSupervision 10/1990 3 12 Economist, Education PIJ management. Autonomy of MCDE, PSLC

Specialist, Architect Examination.Supervision Supervision 2/1991 4 13* Economist, 2 Education 2 1 Need to recruit a Project Manager TA. Inadequate

Specialists, Architect development budget allocated to MOE by FinanceSupervision 6/1991 3 11 Economist, Education Govermnent Budget issues. TA at MIE. Delay in the

Specialist, Architect appointment of Planners/Statisticians.Supervision 9/1992 4 14* 2 Education Specialists, 2 1 Cost escalation in implementing the MASTEP program.

Architect, Operations Sustainability of the PSBU, and possibleAnalyst recommendation to the Bank that funds allocated for

PSBU be reallocated to other components.Supervision 3/1993 2 12* Education Specialist, 2 1 Dropping of the Broadcasting component due to cost

Educational Quality and sustainability, and possible reallocation of projectSpecialist funds. Counterpart contribution. Lack of clarity in the

. objectives and mission of MCDE Centers.Supervision 10/1993 2 16 Education Specialist, 2 1 Strengthening the PIU (through TA provision).

Textbook Specialist Reducing MIE's cost of manuscript development andthe need to expedite and streamline MIE' s workprogram. Textbook sustainability issue (textbookrevolving fund). Status of the "twinning arrangementbetween the Faculty of Commerce and overseasuniversities.

29

Implementation Completion Report Part II: Statistical AnnexesMalawi - Education Sector Credit !!

4-Sta,: o- l -M ihtiSionth- Number a Days in S ali dStaff I menta )vep m& ye of fPoblemsProject Cycle Wear of Field Sil ls Represente tdon Status eDt

: . _ i i:i :Persons ___________ Im pact ___E_________A___E_______i_E_E_________E_E

Supervision 2/1994 2 14* Education Specialist, Donor coordination. Implementation status.Economist (DivisionChief) _

Supervision 10/94 1 5 Education S S Implementation Review, AU Statimg issuesSupervision 2/1996 1 19* Education Specialist S S Government's request for extension of project closing

date due to the delay in some project activities. Issue ofthe PIU phase-out. Change in salary scales at PIUleading to the resignation of key staff. Issue of grantingreprinting rights to private publishers.

Supervision 5/96 1 4 Procurement Specialist S S Procurement issues; bid document preparationSupervision 12/1996 2 6 Textbook Specialist, Issue of granting reprinting rights to private publishers.

EconomistSupervision 2/1997 1 21 * Education Economist Extension of project closing date.Supervision 6/1997 6 24* Education Economist, S S The reasons for significant cost increase at Montfort

Text Book Specialist, College. Non-performance of one MCDE contractor.Procurement Specialist, The issue of the reprinting and publishing rights grantedArchitect, Economist, to private publishers under controversial conditions.Technical / VocationalSpecialist

Supervision 10/97 8 17* Education Economist, S S Delay in counterpart funding.Procurement Specialist,Education Specialist, 2Economists,ImplementationSpecialist, CommunityParticipation Specialist

Supervision 2/1998 5 12* Education Economist, S S Need to expedite final resolution of the issue ofText Book Specialist, reprinting and publishing rights granted to privateProcurement Specialist, publishers. Implementation acceleration / planning forArchitect, Economist all outstanding activities.

Supervision 4/98 1 2 Economist S S Final supervision; ICR start upCompletion 6/98 2 11 Educator, Economist Field visit to project institutions, discussion with project

I__ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ and M O E staff* combined with other missions

30

APPENDIX A: Mission's Aide-Memoire*

EDUCATION SECTOR CREDIT II (CR 2083 MAI)

'rhe World Bank Devebpm entHouse Tot: (265) 780.11INTERNATIONAL BANK FOR RECONSTRUCTION AND oEVELOPMENT P.O. Box 30577 Fax: (265) 781-1 58tNTERNATIONAL DEVELOPMENT ASSOCIATION Lilongwe 3 lIx: 44829

MALAWI Cable: WORLD 8K

May 28, 1998

Dr. S SafuliSecretary for EducationMinistry of EducationLilongwe, Malawi

Dear Dr. Safuili:

Education Sector Credit 1I (Cr. 2083)Implementation Completion Mission (May 18-30, 1998)

On behalf of the World Bank, let me first express our thanks and appreciation forthe fiull cooperation and support that was given to Mr. M. Wodajo and Miss Y.Amde by the staff and officials of your Ministry and the Project lmplementationUnit during their two-week stay in Malawi in connection with the above.referenced mission,

The mission has discussed its findings with you and your staff at the final wrap-upmeeting that you kindly chaired on May 28, 1997. A full ImplementationCompletion Report (ICR) containing the Bank's experience in the implementationof this project and the lessons derived from that experience is under preparation,As you know the Government too will be contributing a section to the ICRsummarizing from its own perspective its experiences and lessons learned. TheICR will be forwarded to the Ministry of Education when completed.

In the mean time I am attaching a summary tablothat was prepared by the missioncomparing appraisal targets with what was achieved at project completion for thevarious components. 'I'he summary table shows that at least in quantitative terms,the project has on the whole attained the specific targets set down in the appraisaldocuments. Perhaps, the project's impact in the areas of institutional development(such as strengthening the Planning Department of MOE, the Inspectorate,Decentralization of Educational Services, etc.) may have been less tangible, butwe realize that those objectives are being pursued under follow-up Bank-assistedprojects such as the Primary and Secondary Education Projects (Cr. 2810 and305 1, rcspectively) in addition to other bilaEcral donors.

Page I of 2

RCA 24a423. WU WUI 64145 FAX (202) 4774391

Implementation Completion Report Appendix AMalawi - Education Sector Credit II Mission 's Aide-Memoire

Dr. S. Sauli -2- Mav 28. 19'.:

During the wrap-up mceting the mission had rcitcratcd the Bank's conccrnregarding the award to commercial publishers of publishing/reprinting rights forthe various lextbooks and teachers' guides that were prepared with funding fromthis project. To the bcst of our undcrstanding thc award was made without opencompetition. As we have indicated in previous communications, this would makeiL extremcly difficult for the B3ank to finance the procurement of those titles in thefiuture as long as this is the case.

._.--tncerely,

James Smith.- Acting Representative

World Bank Resident Mission

' The table was discussed in detail at the wrap-up meeting and served as the mission's aide-memoire. An updatedversion of that table appears as Table 5 of the ICR.

Page 2 of 2

APPENDIX B: Borrower contribution to the ICR

EDUCATION SECTOR CREDIT II (CR 2083 MAI)

PROJECT REVIEW FROM THE BORROWERS PERSPECTIVE.

The Project comprised four parts, these are:-

PART A: PRIMARY EDUCATION

Components relating to primary education:

PART B:

Components relating to secondary education;

PART C:

Post-secondary education

PART D:

Components relating to institutional development

Although approved in April 1990, the Project Implementation activities did not effectively start until October1991 because of the overlapping implementation activities from 5th IDA and First Education Sector Credit.The late start inevitably affected the completion date of the project, 30th June, 1998 instead of 30th June,1996.

1. Strengthening MIE's capability in curriculum development, materials development and in-servicetraining through technical assistance, the recruitment of additional staff, the construction of about 6 low-coststaff houses and the acquisition of two vehicles.

2. (a) The development, production and distribution of teachers' guides and textbooks for the first fourstandards of the primary school system including the acquisition of microcomputers.

(b) The acquisition of about 3,000 sets of own-cost teaching aids for use in standard - I classes.

3. (a) In-service training of about 4.500 teachers including the award of fellowships.

(b) Expansion of a teacher training college by an increase of about 360 student places.

4. Improvement of the of the school broadcasting system through an expansion of SBUs broadcastingfacilities, the acquisition of about 5,000 radio-cassette players and training.

5. Improvement of MOE's capability in the measurement of achievement at the primary school levelthrough training and up-grading of the computer system.

Page 1 of 7

Implementation Completion Report Appendix BMalawi - Education Sector Credit II Borrower contribution to the ICR

6. Strengthening MOEs supervision capability through the recruitment of about 30 additional inspectorsand the acquisition of 60 motorcycles.

7. Acquisition of:

(a) Roofing materials for about 228 unroofed and;

(b) Fumiture and equipment for about 3,000 classrooms.

PART B: SECONDARY EDUCATION:

Components relating to secondary education:

1. Construction, furnishing and equipping of about ten new double-stream MCDE centers.

2. Revision of the secondary school curriculum and the development, productionand distribution of low-cost science equipment and kits and improvement of school libraries through training,fellowships, and the acquisition of books.

3. Strengthening of supervision capability of regional education of fices through the acquisition of aboutsix vehicles.

PART C: POST-SECONDARY EDUCATION

Strengthening the faculty of commerce of the University of Malawi through technical assistance, fellowshipsand the acquisition of computers, including appropriate software and related equipment.

PART D: INSTITUTIONAL DEVELOPMENT

Components relating to institutional development:

I . Strengthening of MOE's capacity to manage the education system through:

(a) Training, workshops and the construction of about 28 staff houses in rural areas;

(b) Training to strengthen MOE's Planning Section; and

(c) Awarding of fellowships and training to strengthen PIU.2. Strengthening CERT to carry out educational research for both primary and secondary schoolsystems.

A. OBJECTIVES OF THE PROJECT:

The objectives of this project, were categorized into four parts as follows:

PART A: PRIMARY EDUCATION

Components relating to primary education:

Page 2 of 7

Implementation Completion Report Appendix BMalawi - Education Sector Credit II Borrower contribution to the ICR

1. Strengthening MIE's capability in curriculum development, materials development and in-servicetraining through technical assistance, the recruitment of additional staff, the construction of about 6 low-coststaff houses and the acquisition of two vehicles.

2. (a) The development, production and distribution of teachers' guides and textbooks for the first fourstandards of the primary school system including the acquisition of microcomputers.

(b) The acquisition of about 3,000 sets of own-cost teaching aids for use in standard - 1 classes.

3. (a) In-service training of about 4.500 teachers including the award offellowships.

(b) Expansion of a teacher training college by an increase of about 360 student places.

4. Improvement of the of the school broadcasting system through an expansion of SBU's broadcastingfacilities, the acquisition of about 5,000 radio-cassette players and training.

5. Improvement of MOE's capability in the measurement of achievement at the primary school levelthrough training and up-grading of the computer system.

6. Strengthening MOE's supervision capability through the recruitment of about 30 additionalinspectors and the acquisition of 60 motorcycles.

7. Acquisition of:

(a) Roofing materials for about 228 unroofed and;

(b) Furmiture and equipment for about 3,000 classrooms.

PART B: SECONDARY EDUCATION:

Components relating to secondary education:

1. Construction, furnishing and equipping of about ten new double-stream MCDE centers.

2. Revision of the secondary school curriculum and the development, productionand distribution of low-cost science equipment and kits and improvement ofschool libraries through training, fellowships, and the acquisition of books.

3. Strengthening of supervision capability of regional education offices throughthe acquisition of about six vehicles.

PART C: POST-SECONDARY EDUCATION

Strengthening the faculty of commerce of the University of Malawi through technical assistance, fellowshipsand the acquisition of computers, including appropriate software and related equipment.

PART D: INSTITUTIONAL DEVELOPMENT

Page 3 of 7

Implementation Completion Report Appendix BMalawi - Education Sector Credit II Borrower contribution to the ICR

Components relating to institutional development:

I . Strengthening of MOE's capacity to manage the education system through:

(a) Training, workshops and the construction of about 28 staff houses in rural areas,

(b) Training to strengthen MOE's Planning Section; and

(c) Awarding of fellowships and training to strengthen PIU.

2. Strengthening CERT to carry out educational research for both primary andsecondary school systems.

B: STATUS REPORT/ACHIEVEMENTS

PART A:

1. The primary school curriculum and textbooks were executed resulting in printing new textbooks forthe new curriculum for Standards I to 8. Originally, there was provision for printing for only Standards I to 4,but when the school radio component was phased out at the pilot stage, there was enough money to print thebooks for Standards 5 to 8.

2. The schools radio was phased out after the pilot stage because it proved to be too costly to besustained.

3. Mastep ran for two years and closed in September 1993 after graduating 4,200 students.

4. 641 classroom blocks comprising 2,218 classrooms have been re-roofed. The rehabilitation of theprimary school classrooms is a major component in Part A and has made a very big difference to the lives ofthe pupils who were learning in the open air and subjected to harsh winds and rains.

5. Montfort has been expanded from 160 to 540 student places. Library and textbooks, a lorry and a bushave also been provided to the expanded College.

6. 60 motorcycles and 6 vehicles were purchased to improve the mobility of the supervision staff.

PART B:

I . I () Double-stream MCDE Centers have been constructed with four teachers houses at each Center.

2. Secondary School Curriculum revision was started but not completed due to lack of adequate timeand funding.

3. Six vehicles were purchased to strengthen the supervision by the Regional Education Offices.

PART C:

Page 4 of 7

Implementation Completion Report Appendix BAMalawi - Education Sector Credit II Borrower contribution to the ICR

I . Technical Assistance and Fellowships at the Faculty of Commerce, the University of Malawi,brought seven lecturers through Dublin City University in Ireland and provided eight fellowships atSaskatchewan University for eight fellows and four scholarships at Dublin City University for four fellowsfrom the Faculty of Commerce, University of Malawi.

2. 75 computers including software and furniture have also been supplied to the Faculty of Commercetc augment effective teaching.

PART D:

I . 28 staff house, one at each education district have been erected.

2. Center for Education Research and Training for both primary and secondary school systems carriedout the rescarch on all the issues which were given to them. Their results served as a guide to the Ministry onall Policy Issues.

3. Six staff houses were constructed at MIE to house personnel for the curriculum and textbooksdevelopment.

4. Computing equipment and a bus were purchased for the MIE.

C. PROBLEMS ENCOUNTERED DURING THE COURSE OF THE IMPLEMENTATION

I . Duc to the late start of the implementation activities, PIU was under considerable pressure to speedup the implementation activities in order to compensate for the lost time. This did not yield any positiveresults. Consequently, the closing date of the project was extended from 30thJune 1996 to 30th June, 1998.

2. Thc Bank's insistence on new bidding and tendering procedures took up valuable time as the projectstaff had to study and learn how to apply them.

3 . Awards of contracts after Evaluation Report had been submitted to the Bank took too long and veryoften were referred to and from because of differences in the perceptions of the new bidding documents andevaluation of bids. A good example in this connection is the fiveMCDE Ccnters i.e. Dowa, Nguludi, Mapanga, Dzurnila and Mkanda.

4. Dce aluation of the Malawi Kwacha hit the implementation very hard. The Malawi Kwacha fell morethat 300%' within a period of 12 months and brought in wide spread inflation. Malawi imports most of thebuilding material. Hence, the implementation slowed down and the costs went up.

5. High failure rate among small-scale contractors who were on the Second Education Sector Creditjobs resulted in re-tendering and long delays in completing the projects.

6. The Bank's changed attitude towards the future of the PIU led to the loss of two senior staff. Thesewere: - the Financial Analvst and the Senior Architect. PIU could not replace them because with the changedconditions and terms of employment, no high calibre professionals could be attracted to the two vacantimportant posts at the PIU. Disappointingly, PIU had to continue implementing the project without therequired number of key personnel.

Page 5 of 7

Implementation Completion Report Appendix BMalawi - Education Sector Credit !! Borrower contribution to the ICR

7. Delays in replenishing the Special Account crippled the PIU from time to time because thecontractors could not be paid timely. This trend was further complicated by applying recovery 100% towardsthe end of the Credit, leaving only a balance of 2 1,000US$ in the Special Accountagainst the competing claims totaling 350,000US$. This was disastrous. This is where discretion shouldprevail against rigidity of keeping to written procedures which never take into account special circumstances.

8. Heavy incessant rains during the wet seasons adversely affected progress on the construction worksbecause verv often the sites became inaccessible due to the damaged roads and washed-away bridges.

9. There was no permission of field supervision on the Mastep program, so that the distance modulesassignments were not properly followed.

C. BANK'S FACILITATING ROLE IN THE IMPLEMENTATION OF THE PROJECT.

1. Frequent Supervision Missions which included Procurement Specialists greatly guided and assistedthe project staff in implementing the project efficiently.

2. Timely payments to the contractors and suppliers by the Disbursement Department in Washingtoncontributed enormously to the project implementation.

3. Minimum tumover of the Bank's personnel supervising the project was most commendable and didnot waste uay valuable time. The two closing-date extensions granted by the Bank i.e. from 30th June, 1996to 30th June. 1997 resulted in a very satisfactory completion of the project.

D. LESSONS LEARNED FROM THE PROJECT

I. Procedures in procuring works, goods and equipment should not be unilaterally changed by the Bankwithin the life-span of a project because such changes impose a new learning curve on the project staff. Thelearning curve takes time and leads to delays in completing theproject.

2. When recovering the Special Account towards the end of the project, the Disbursement Departmentat the Bank should ensure that the project is left with adequate funds to meet all the claims coming in. Forexample, the replenishment application Number 84 SPAC was recovered 100%, leaving the project withoutany funds to meet the pending claims from the contractors and suppliers amounting to 348,385.3 1US$. Thiswas most unsatisfactory and should be avoided in future.

3. The insistence by the Bank that contracts should be awarded to the lowest evaluated bidder,irrespective of the recommendations from the project staff, has led to delays in completing Dowa, Dzumila,Mapanga, Nguludi and Mkanda DECs. After the failure of the first contractors,, wehad to re-tender the jobs at these sites twice and in some cases thrice which led to paying three times morethan we would have paid had the first recommendations from the project staff been accepted.

4. The high failure rate among the small-scale contractors was considerably reduced after holdingfrequent orientation seminars on effective management of projects.

5. It is advisable to award most of the civil works contracts during the dry season in order to avoidinterruptions and delays due to incremental weather conditions.

Page 6 of 7

Implementation Completion Report Appendix BMalawi - Education Sector Credit II Borrower contribution to the ICR

6. The Mastep program was a great success. It enabled us to train a large number of teachers within ashort period. The lessons learned in the implementation of this program guided us in the preparation of thecurrent MIITEP program. It is also training teachers through a combination of residential component anddistance component.

7. The provision of 60 motorcycles did not take into consideration the problems of fuel andmaintenance of those motorcycles. As a result, most of them are damaged and can not be repaired. Unlikevehicles, motorcycles need to be attached to individual officers if they are to beproperly looked after.

Page 7 of 7

APPENDIX C: Miscellaneous

EDUCATION SECTOR CREDIT II (CR 2083 MAI)

1 - List of Persons Met

Ministr. of Education (MOE)

> Dr. S.D. Safuli, Permanent Secretary- Mr. S. Chamdimba, Director, Planning Unit

> Mrs. E.L. Juwayeyi, Planner, Planning Unit

Project Implementation Unit (PIUj

> Mr. G.J. Chiundira, Projects Manager> Mr. H.K. Mkwezalamba, Deputy Projects Manager> Mr. E.S. Msiska, Projects Architect> Mr. W.S. Macheso, Quantity Surveyor> Mr. G.S. Msyali, Quantity Surveyor> Mr. R.J. Guja, Procurement Officer> Mr. D.C. Luwanda, Building Superintendent> Mrs. E. Nyirenda, Assistant Procurement Officer> Mr. H.B. Mandiwa, Principal Accountant> Mr. M. Thawani, PIU, Blantyre

Malawi College of Distant Education (MCDE)

> Mr. V. Chalila, Principal> Mrs. B. Masauli, Deputy Principal> Mr. Bishop Muwowo, Principal Tutor

Faculty oJ Commerce at the Polytechnic

> G.B. Mthindi, Dean, Commerce> C. Sichinga, Accountancy Department> 0. Cosgrove, Accounting Department (TA)> M.C. Mtambe, Business Administration> J.K. Khomba, Accountancy> B.J. Ndhlou, Accountancy> M.J. Shonelin, Project Link Coordinator

Centerfor Education Research and Training (CERT)

> Dr. K. Mwale, DirectorMalawi Special Teachers' Education Program (MASTEP)

Page 1 of 3

Implementation Complefion Report Appendix CMalawi - Education Sector Credit II Miscellaneous

> Mr. S. Mawindo, Former Programn Director

Malawi Institute of Eduication (MIE)

> Mr. N.T. Kaperemera, Acting Director> Mr. W.E. Chauluka, Deputy Director and Publishing Manager

2 - List of Sites Visited During Completion Mission

A - Distance Education Center (DECs) - converted to Dav Secondary Schools

1. Linthipe Dedza2. Dombole Ntcheu3. Puteya Machinga4. Dowa Dowa

B. Primary Schools

Nn,neofSth ~~~~~~Disttict

1. Chiole Ntcheu2. Bawi Ntcheu3. Chitale Ntcheu4. Songani Zomba5. Domasi C.C.A.P Zomba6. Mtubwi Machinga7. Chilanga Machinga8. St. Augustine III Mangochi9. Samiama Mangochi10. Chinkhumbe DedzaI11. Lifidzi Salima12, Lifidzi (Nchoka) Salima13, Kalonga Salima14. Kawangi Dowa15. Kongwe Dowa

C. Malawi Institute of Education, Domasi

D. Malawi National Examinations Board, Zomba

Page 2 of 3

Implementation Completion Report Appendix CMalawi - Education Sector Credit I Miscellaneous

E. Project Implementation Unit, Blantyre

3 - Sites for Primary School Classroom Rehabilitation

REGION DISTRICT NO OF NO OF STATUSBLOCKS CLASSROOMS

NORTH CHITIPA 23 63 CompletedKARONGA 21 80 CompletedRUMPHI 17 46 CompletedNKHATA-BAY 16 48 CompletedMZIMBA 43 144 Completed

TOTALS 120 381

CENTRAL NKHATA-BAY 26 76 CompletedKASUNGU 18 57 CompletedSALIMA 25 93 CompletedNTCHISI 19 76 CompletedMCIUNJI 27 73 CompletedDOWA 19 71 CompletedLILONGWE 31 107 CompletedDEDZA 26 92 CompletedNTCHEU 34 130 Completed

TOTALS 225 775

SOUTH MANGOCHI 21 83 CompletedMACHINGA 32 120 CompletedZOMBA 26 84 CompletedCHIRADZULU 30 134 CompletedBLANTYRE 38 111 CompletedMWANZA 13 43 CompletedTHYOLO 34 131 CompletedMULANJE 68 207 CompletedCHIKWAWA 26 83 CompletedNSANJE 16 66 Completed

TOTALS 305 1062

Page 3 of 3

IBRD 30020

T A N Z A N I A M AWT.aesaam D. _. MALAWI

20 420 6,0 80 100 SECONDKILOMETERSED C T O

1, 4KARONGA SECTOR PROJECT-1' ;10'sAo X h°

"l> '7<o < * MCDE CENTERS

\ \ 'y Chilum6o * FACULTY OF COMMERCE| % ,- \ Js AT THE POLYTECHNIQUE

,- */ Liyingstonia A MALAWI INSTITUTE OF EDUCATIONRIJ PHI /to,,o DISTRICT INSPECTOR HOUSES

m'__ Note: 2,000 primary school classroomswere rehabilitated throughout thecountry.

g Z \ f ikwendefii

Z A M B I A B mSA NKHAT PRINCIPAL ROADS

12' ,0Luwelezi ChisumuI MAIAWII - SELECTED UNPAVED ROADS 12'

Lt t; .ttikroma 1. RIVERS

0 TOWNS

0 DISTRICT CAPITALS

* NATIONAL CAPITAL

( Chulu- DISTRICT BOUNDARIES

l ! / + '~ KASUfiotolGoto -~-INTERNATIONAL BOUNDARIES

MOZAMBIQUEA \ O :- ,\ Y S0c BMkoknjilcl

ro Lu50kM < (i LILONCWE U SAIJ;\

14' ,NOmitete 14'

C EDZA I I c \

* ~ ~ 329 > \k\ f t ' ;' ,! A s~~~~~Dt

_-~ ~ ~ ~~~~~~f-- \ +--O-U- Ofl''-h' I3'2'

KENYA SOMALIA Baka MAC)INGA

RWANDA)~ __LI*WON4E /DEMOCRATIC RN MOZAMBIQUE vgaREPUBLIC OF BURUNDI \ (

CONGO ,./W>- OMB \

rt - TANZANIA !o\

'-V "BLANT R_ No 'i PHALOMBEMw Z.'4radIuMsa

ANGOLA '1

'-.'\ ! .T.COMORO

16' *Chkaa*-LNE 16'ANGOL I -MOZAMEIQUE (F)M 1 - lb Bese

ZAMBIA n\ )zCI,ePrA-A ML~I ~ - CHIKWA '"'

i ^ ; ( ; \ eke) anm ( This map was produced by the-F .tL \ X ,, t N¢ABUi t Map Design Unit of The World Bank

_ _ E ~ J ! ^A.' $ )/ The boundaries, colors, denominationsZIMBABWE \,, Chiama and anyother information shown on

'-., I t j . 8 4t ,his map dao not imply, on the part of

1 j n J' ' , '\A The World Bank Group, any judgmentZr IOT_WANA MADAGASCAR *f on the legalstatus of any territory, or

i BOTSWANA I-sa * nie any endorsement or acceptance of

!SOUTH ( S such boundaries.

AFRICA 34' 36'

JANUARY 1 999