Document of The World Bank

Report No: ICR00001890

IMPLEMENTATION COMPLETION AND RESULTS REPORT . (IDA-H1590)

ONA

GRANT

IN THE AMOUNT OF SDR 22.0 MILLION (US$ 32.2 MILLION EQUIVALENT)

TO THE

REPUBLIC OF MALA WI

FOR THE

EDUCATION SECTOR SUPPORT PROJECT 1

Human Development 1 Country Department 3 Africa Region

June 9,2011

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CAS CDSS CIDA

CPD CSO CSR DEM DFID

DSS EDMU EFA ESIP ESMF

ESSU FPE FTI GDP GER GTZ ICR

MA MDGs MOE MoEST

MSCE MTR NESP NGO

CURRENCY EQUIVALENTS

(Exchange Rate Effective Various Dates)

Currency Unit = Malawi Kwacha (MK) MK 114 == US$1.00 [June 16,2004]

US$ 0.00877 = MK 1

FISCAL YEAR July 1 - June 30

ABBREVIATIONS AND ACRONYMS

ii

Country Assistance Strategy Community Day Secondary Schools Canadian International Development Agency Continuous Professional Development Civil Society Organizations Country Status Report District Education Management UK Department for International Development Direct Support to Schools Education Development Management Unit Education For All Education Sector Investment Plan Environmental and Social Management Framework Education Sector Strategic Update Free Primary Education Fast Track Initiative Gross Domestic Product Gross Enrolment Ratio German Technical Cooperation Implementation Completion and Results Report Masters of Arts Millennium Development Goals Ministry of Education Ministry of Education Science and Technology Malawi School Certificate of Education MedIum Term Review National Education Strategic Plan Non·Govemment Organisation

NLGFC

NSTED

OBM PAD PASS PEA PDO PIEQM

PoW PqTR PRSP PSC PTA PTC SHN SHNP SMC SWAp SWG TDC TTC TRF TTL TWGs UNICEF

National Local Government Finance Committee National Strategy for Teacher Education and Development Output Based Model Project Appraisal Document Primary Achievement Sample Survey Primary Education Advisers Project Development Objective Project to Improve Education Quality in Malawi Programs of Work Pupil to qualified teacher ratio Poverty Reduction Strategy Paper Project Steering Committee Parent Teacher Association Primary Teachers College School Health and Nutrition School Health and Nutrition Program School Management Committee Sector Wide Approach Sector Working Group Teacher Development Centre Teacher Training College Textbook Revolving Fund Task Team Leader Technical Working Groups United Nations Children Fund

Vice President: Obiageli Ezekweseli

Country Director: Olivier P. Godron

Sector Manager: Peter Matern

Project Team Leader: Carlos A. Rojas

ICR Team Leader: Innocent Najjumba Mulindwa

iii

COUNTRY: MALAWI EDUCATION SECTOR SUPPORT PROJECT 1

CONTENTS

Data Sheet A. Basic Information

B. Key Dates C. Ratings Summary D. Sector and Theme Codes E. Bank Staff F. Results Framework Analysis G. Ratings of Project Performance in ISRs H. Restructuring 1. Disbursement Graph

1. Project Context, Development Objectives and Design ............................................... 1 2. Key Factors Affecting Implementation and Outcomes .............................................. 6 3. Assessment of Outcomes .......................................................................................... 10 4. Assessment of Risk to Deve10pment Outcome ......................................................... 19 5. Assessment of Bank and Borrower Performance ..................................................... 19 6. Lessons Learned ....................................................................................................... 21 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners .......... 22 Annex 1. Project Costs and Financing .......................................................................... 23 Annex 2. Outputs by Component ................................................................................. 24 Annex 3. Economic and Financial Analysis ................................................................. 35 Annex 4. Bank Lending and Implementation Support/Supervision Processes ............ 39 Annex 5. Beneficiary Survey Results ........................................................................... 41 Annex 6. Stakeholder Workshop Report and Results ................................................... 42 Annex 7. Summary of Borrower's lCR and/or Comments on Draft ICR ..................... 43 Annex 8. Comments of Co financiers and Other Partners/Stakeholders ....................... 53 Annex 9. List of Supporting Documents ...................................................................... 54 MAP

I'll

-~"" .. +.".""" ..... ~"'.~ •. ,, ......... ""-.""- "." ...... "." ~'"-''-'''~'-'''-''''''''' .,." .. "" .. -.. " "." .. " .. . iOOVERNMENT OF

._._."jM~"L"".A._"" .. WI"._ .. " ... """."" .... " .. _."."".. _j

, iXDR21.6M

06/0712004 none none

05103/2005 11/20/2007 11/19/2007

0911512010 12/15/2010

Riskto !~~~~PE:~~:,,'O~~u.t~c~o.m~~e~: ... ~ .. -......... -.-."." .. "f~~~~~~~~~ ...... -......... -...... -.. _ ... _ .......... " ........ __ . __ .... -- .. 1

. Bank Performance:

Borrower Performance:

,"",_,~,~,,,,,,,,,,_~ '~'."''''''' ",~' "_,~~,.,.,,,<,;~,~,,.~_,,,,_.,.. o<,,_..,,~., P_"~'~'"_'" ~"_,~,."""",."",~_"_,,,,,., ~''''''''~'' '""" ~. ,.,. .... ~.~ ..• ;'., _.,.. _w,p ' ____ ,".~, ... _.' •.• '''''_~.,>'.O>~".''''~_, ." >_'''_,... __ ",..'''',,",o'p -~,~",,,,""_~~". ,~, ,",,' • ..,-. -,'''" ,,' "¥' • 't' ," ¥~ ._,_ ... <~ •• ,,~~~"_~ ,._,~_~, .~,

l~;~~ .. ~~~~~!~t!~i~,.·.~!'!!!~~~~~~~~t··.~ :{~~J~!y.; .... ', ..... , ........................ , ............ " ........ _ .. ,. ' ... ". ._."_:J~~!!I!.,,..... "._1...... . .. _!~~!!JJ~~_." .......... C< ••••• " •• ~!il:!~~y~t .-- .. """i,.... ..... ~~$!~§.,.,, .. ,.-. ]

Moderately IUn Satisfactory r ...................................................... :. ·········in;pi~n;~~ting

:Quality of Supervision Moderately SatIsfactory ';A: fA' : ' gency gencles:

;~~70~~~::! ........... ·l~~~~~~~el;~~t~~~~~~~~~:;~~~:~:~;~~ . Moderately Satisfactory: ... _._ . '" ".1.",", .. , " .... _" . . . ._.. . _., ... _,...... . .. ___ ..... " ." ........ ~. "" ' .. ".' -t, __ •. _ .• ' .

:Quality at Entry: iGovernment: Moderately Satisfactory:

Moderately Satisfactory'

v

Icj'Q~~iitY';t' ji;try';;dI;pi;~;;t;ti~~"p~rl~;:;;;~;I;di~;t~rs ... " ......... -- ................. '1

r. ~c··I;'t. ;i;·~ ... ·~~t; .•. .trafi·"·"··T···-···I·-"··~·.:. ···:-· .. ········· .. ·1. ··QA(n~;;.;;;;;f;t·;··.r-·-·····"--::=-t··:·.···--···· ........ J 1 ' ... ' .'. ,... ..' • , • Ulllt,"a~()rs, '. '.' .' .... 'l.~lng 1 i .. l')~rf(n':man{;e .'. i . .... '. •... 1 .. '. . (l{any) . . i. '. . .' ..... I l" .................... _ .... "._"" .......... _ ..... _ .. _ ...• + ...................................... " ........ " .... _, ..... "_ .. ,, ... w •• ..... " ••• "' ••• _ ...... _-.-." ... +."" ....... , .....• , ................. _ ........................ , I Potential Problem Projectly IQuality at Entry 1M dIS . f1 I lat any time (YeslNo): ! es i(QEA): ' 0 erate y atlS. actory I f·--····· .. ·· .. · .. •· .. ··,,· .. ·• .. •· .. ·_· .. ··•·· .. · .... ···,·,,··· __ · .... ""." .. " ..... --." ... ".-."" ....• + ... --................ -~ ...... ,,,,,,,,,,,,, .. J ........ ,,,, ... ,, ................. -~ ....... " ..... " .......... , I Problem Project at any iYes jQuality of ~ I !time (YeslNo): i ISupervision (QSA): ! one ! "",,~ ... _ •••.. ,,.~>o ._ ..... ",'" .. • ·_m"."·"_~""·,~ .... ~·.,,_._ ••. " •.• .,. •• ~._."'_,.~.~~ ... ~.,,_.~.~"'~, .•. w .. , • 'ql""~." .. --'''"'~.-'' ...... -~'' ...... -~-.".,~,,- _"M ,,~. "",w,,_e1""""'""'''''~''"''-'~" __ 'N~ '''M_~ . 'M", .. ,",·~~" .. "~",,. . . "-""~'''!

I DO rating before iModerately I I j , I! I IClosing/Inactive status: iSatisfactory I . I L_.~",,~,., ,-,,",'.~ .. "'"'~" _~~ .M"" '. ~"""" "'_ •. '~'~M" ',' " •. '" .. _',,, .,." ... ~_,« ___ ,_~_ .. ""'_"_"~"~""'~_'~'_' ... _. __ ", '_~." '-. _, _" .. , •• _,-".~ ~~'M. "o~ • ,~"""" "' ••• , ".~ .. ,,~ ,,"0'" .~""'~,~ ",," "~V_~ _1. .. "_.,,"~.,, __ ~.,,," ..... _~~ .,' .~.-_.. ....~.~._.--i:

% of total Bank

Decentralization

Education for all

Nutrition and food

Sector "" ....... ~ ........ -.,-.,-.-,-+ ... ---

~~~() j~c:~!:'~.a..f!.lI.:~.~der: 1 ICR Team Leader: L ..... , ............................... , ... .

!I.,,<:;~R~i~~ry Aut.~()r:.

vi

45 lOA

2 10.0

2 12.0

13 12.0

20 10.0

20 12.1

40 77.9

20 0.0

F. Results Framework Analysis

Project Development Objectives The project development objective as stated in the Development Grant Agreement (DGA) was to improve the education quality in the Recipient's territory through development of a broad education sector policy, enhancing the capacity and number of qualified teachers, enhancing the capacity and quality of the education service delivery and improving learning outcomes.

Revised Project Development Objectives (as approved by original approving authority)

(a) PDO Indicator(s)

. "'j Original Target T F'o"trI;~dlyi Actual Vab.u.J BiUlelin:e Vaiue V Iii!u.e$ (troR'i Revised \. Achieved at

(l004) L up.provut) 'l'urgef I COnllJleti'Oll .i Ii .. ' .' ..........•.•..•..•......... ' .......... '.' ' .... ' " ....•. '. ....«< ............... i " .. " .................... ~. ,,, ...... c ... _.l~~~~!!"!!c~H;Q!~h.~ .. ~.~~~!~~' •... L~~~~:t.:~~,~~!.~~.ic~).~

illllproveq.PqTltin 82:1 . SO:ll Not revised! 88:1 . :standard t",8 to max i 18~:lbY¢lQsm~date,J ..... " .. L .. L ....... ,

K::omiiN~t·Aiaj~stthe.· baSelijte, theirtdieaforw;s'notinetartd theJ>qTFt was. abovethebas;Jjn~ loy tttecloseoftneproject. Thenumoer ofnewqual16ed tea:cherscannot keep up with the! iincl'~asil:tg number ofstu~entsmthel'rirn~educ~tiousysteIn" .' ......... .. ..... . .. ' fintr¢ased~~b;;ofT ...... 'N:Ot~avajiabje"'" · .. ········ .. ·500· ............ ··rNotfevf~dT··665·$p.¢es ispaces at teacher , . I

!tmining coUegesfor ! , tp!~~.t.~~~~[~: ..... J.. _ .......... ;; ........... _ ................ 1_ ....... ...... :...._ ..... c ................ L: .......... _.. ............ 1 ................. " ... "............ __ .. i9.9~.~~Bt.!!r!.~~~!l!!.g~~~Jl!I,lX.~~!: .. m •••• ••••• _ ... M.'......... ..................... , ~tllpro\tedPqTRini .1 g·2:·1 65:1 I Notrevis¢j .70: 1 tcDSStOlll~65:L! .;

.. ~it~~.:. ........ ,....... ., ..................... , ................ " ... ~.. l. ... , ...... ,; ... " .. ; .. ; .• , ..•....•... ~ .• ;.;;..; •.. ; .. ,; .... ; . .1 .. i .. '....... . .... , ... ; .................... J .. _;;........ . .. i ..... " ................ '

l€() •. } ........•.....••...•.....••• "fl1eS¢~;getw~.notflletll~tgofng.·~Ytlre:ba$~lineft~re.tne.gtJiIt$1li}td¢.wef¢V~n1 .j.!!~~t~fP~~~i!l~~~g~,~!!~ .. !~~ .. e~~J!~t..~~~~ .. ~~.~~~!~.£2!!1~·i~!~t..~~.~~:!;!!::, ...... ~ ...... ....• j.

~umberof! Notavai.ta:ble.· 250 J.NotrevistWi About 10'00 ~pac(ls~~~~1'ttary . !! ilevel. tra.inihg iirtstitud{)ns"'for ..rx .. t.~?~!~~.L......... ........ L .... .. .:

:._<?~~.e.!l~: ... !~! .. ~!~.!t.lr~~~.~~ .. ~!~l.f!i.~.~!l~"p~~~~.r:f!i~c~.~~~.J~~~f,l~!!"~t}~.~~~."!~!~!t..~&e!:" ... c .•

;Delivere'ffective' 3 A%80%of aU public tN'ot revised :Approximately 9~loi ischoolhea.ltnand !primary school . ! !ofthe target papils inutritioni1;ilerventionijPupUsunderage of! ... lcovered. Itoatlea:st~~~af ttO. ; itarg~t~0t1Pfag¢d. .' .1

i}Q?_l?~:£l~~~ll:&~~~:";"t,..... .... ".......". . ..... _ .... " .... " . . .......... ....... ...... -1. ..... _ ................ "" .. , ... ".L.~ .". __

vii

r .... '.' ....... '.' .' .... ...... .... ..·:i~trl'·'·"~'·"·'·~'-·"··;:~·~Fl;it;f9$O/;i1,"~u"~ii~~t~·:·::··L·~·i94'QfP9hij*''''·i itoatleast95%ofajl! \pU'blicprimarY!~a:nt$ t'0 jprimt'trYsehOOls' \public primary 1sohooI8.covered. iprill1aty l~nefitt¢dfuyritthe isehoots. 'is¢ht'JoistORt IDirectSupportto

ileast 2000 lScl100is (DSS) Jprimary !grants. iscnoolshy

i lclosinudllte. ! . , ~."_<""~".f •• "",~,,,~ .. _.~, "' ",*~": .. ""· .. _.,.,.""v~_,_ •. ,., ... ~_ .. ,: ...... ,~ .. ,,,,,,, ,,~.~. ._" .. ",-H .... ' .• ~.".,'",'," .. ,., .• ~""_.nv·~· ~ _, "' ' .. , ~".~. ~ '" ~'""~."" ,,'

jcOllttl'lertt: Againsttne,basefin~theindicator was ·fullym.et.andperf(}mi~Ce~jtceedeU the .set) !~.g~~: ... , ............. ;;., .. "/ ... " ... , ... ,.",,., ,. ,., ... "",."" ... , .. ,. ",'" "-""""""'"'' ......... ,.;,

G. Ratings of Project Performance in ISRs

Moderately Unsatisfa:~t()ry ,

, Moderately Satisfactory Moderately Satisfactory . rModer~teiyS'atisfactory:ModerateiySatisfactory' "'rModerateiySatisfactory'Mode~ateiySatisfactory'" ... -\-......................... _ ................................. 'T, .......................................................... ,-, ............... ..

4.96

7.71 13.40 17.83

04/0912009 I Moderately Satisfactory, Satisfactory 23.49 .......... ................ ..,+ ...................................................... , ..... , ....... , .. , .. , .. , ......... , ...................... , .. , ...................................... , ............................. . 0612612009 1 Moderately Satisfactory , Moderately Satisfactory • 23.49

. ,12;0312"()()~j" ..•. I~?~~~~t~Ii"~~!i..~fa~~?!i~r~~~~~~!~Iy·$~~i~f~?~?ryT·· 26,38

11 ..... 2?(??(?(gQ .... ..!. ~<? .. ~~!~t~I~.~~t~s!'a.?.t<.> .. lJ:.LM<?~~~~~ll:. §~!~sfa.~!<.> .. II .. ~...... ............ _ ........ ?~:?? ........ .

H. Restructuring (if any) Not Applicable

viii

I. Disbursement Profile

- Original ---- Formally Revised -- Actual 40

30

i 20 I ~ 10

0

\II' \II' ..... ..... .. .. ... ... .. .. ... ... ... .. .. .. 1:1 .. 1:1 1:1 1:1 ... ... ... .... ... 0 1:1 1:1 1:1 0 1:1 0 0 .. 1:1 0 0 1:1 N 1"\1 N N N 1"\1 N N N I"i N 1"\1 I'll

ix

1. Project Context, Development Objectives and Design

1.1 Context at Appraisal

Country Background

1. At appraisal in June 2004, Malawi was recorded as one of the poorest countries with a relatively small economy (US$2 billion economy) growing at approximately 3 percent with a gross domestic product (GDP) per capita of about US$175. The Malawi economy was identified as one that was likely to have a small modem sector that would not be sufficient to sustain its· population of 11 million given how small it is geographically and with limited arable land. The economy was and still is pre-dominantly agricultural with heavy reliance on tobacco export amidst high recurrence of droughts and high incidence of HIV. It is not surprising that 65 percent of the population was living in poverty. However, a strong stabilization policy introduced by 2005 coupled with debt relief from the Heavily Indebted Poor Countries (HIPC) initiative brought about a rapid turnaround in government finances, better management of public spending, and created fiscal space needed to generate the momentum for the resumption of growth. Real growth from 2005-2010 (also the project implementation period) averaged about 7 percent peaking at 9.7 percent in 2008 compared to an average of 2 percent in the earlier years. During this time, the percentage of the population below the poverty line was reduced to 52.4 percent. The current GDP per capita is estimated to be approximately US$326 Despite prudent fiscal and macroeconomic management and encouraging growth, Malawi still faces supply side constraints including energy, foreign exchange availability and the economy remains vulnerable to tenns of trade, weather and other exogenous shocks.

Sector Background

2. The Government of Malawi was committed to expanding education service provision for improved growth. Free Primary Education (FPE) was launched as early as 1993/94 which led to a 52 percent rise in enrollment the following year. In 1998, Community Day Secondary Schools (CDSSs) were also introduced in a bid to promote access to secondary education. By 2001102, recurrent spending on education was also increased to 3.6 percent of GDP slightly above countries like Uganda (3.2 percent). At this time, there were large disparities in the intra~sector allocations in favor of higher education. Higher education received 15-20 percent of the allocation compared to 10-15 percent for secondary; and the unit cost at university level was US$2,500-3,000 compared to US$10 for primary. This was unique for a country implementing mass refonns at the lower levels.

3. Three major constraints to education service delivery were identified as: (a) declining quality of education, in part, due to the high number of untrained teachers

1

resulting from the limited access to teacher education I ; (b) inefficient service delivery due to the lack of a prioritized sector plan that distorted resource allocations in the education over the years; and (c) high absenteeism and low retention levels partly due to such factors as parental poverty and limited community involvement.

4. Rationale for Bank Involvement. The 2002 Poverty Reduction Strategy Paper (PRSP) identified the enhancement of human development as one of Malawi's formidable challenges with a goal of reducing primary dropout and increasing secondary enrollment. The Malawi Government's Growth and Development Strategy (2006~11) further prioritized improvements in education access, quality and equity across education levels in a bid to foster human development for growth. The Education Sector Support ProJect 1 (ESSUPl) was thus timely and relevant to the development agenda for the country. The Malawi 2004·2006 Country Assistance Strategy (CAS) identified the strengthening of service delivery and safety nets as one of the three strategic pillars. The ESSUPI was aligned with the outcome indicator on improved expenditure management and institutional structure for service delivery; and continued to be relevant in 2007·2009 CAS cycle. In addition, investing in people was one of the pillars that underpinned the World Bank Strategic Framework for Assistance to Africa (The World Sank, 20042),

with an aim of supporting achievement of the education Millennium Development Goals (MDGs) and Education For All (EF A) goals. The Education Sector Strategic Update (ESSU) (2005)3 stressed the importance of key inputs to education service delivery including teachers and quality learning environments; which further justifies Bank engagement. ESSUPI was thus consistent with government and Bank priorities.

1.2 Original Project Development Objectives (PDO) and Key Indicators

5. There were variations in the original PD~ as presented in Section 3 of the PAD, Annex 3 of the Results Framework in the PAD, and the Development Grant Agreement (DGA) as indicated in the matrix below.

Irnr,,·ft\J,ncr education quality by improving the conditions and processes of teaching and learning at the school level, and the capacity for education service delivery across the education the number of

To improve the conditions and quality of teaching and learning at the school level, and the

for the

I The percentage of untrained teachers increased from 16 percent to 40 percent after the introduction of FPE; while the proportion of unqualified teachers in the Community Day Secondary Schools (CDSS) also rose to 64 percent.

2 The World Bank (2004); Strategic Framework for Assistance to Africa. IDA and the Emerging Partnership Model. The Africa Region;

3 The World Bank (2005); Education Sector Strategy Update; Achieving Education For All, Broadening our Perspectives, Maximizing our Effectiveness.

2

qualified teachers; improving capacity and quality of education service delivery by fostering community participation and by strengthening the management of human and financial resources at district and primary school levels; and improving learning outcomes at all levels. by providing enhanced conditions for school effectiveness that will contribute to changes in the behaviors of teachers and students. Most important, the project was considered a bridging operation consolidating policies and building the foundation for a broader sector program Indicators

education service delivery across the education system.

enhancing the capacity and number of qualified teachers, enhancing the capacity and quality of the education service delivery and improving learning outcomes.

1. Improve the Pupil to Qualified Teacher Ratio (PqTR) in Standard 1 ~8 to max. 80: 1 by closing date. 2. Improve the PqTR in Community Day Secondary Schools (CDSS) to max. 65: 1 by closing date. 3. Deliver effective school health and nutrition intervention to at least 80% of primary school pupils

under the age of 10; as proxy for improved conditions and behavior change at the pupil level. 4. Provide Direct Support to Primary Schools (DSS): (a) within the fIrst quarter of the school calendar

year to some primary schools by March 31, 2007; and (b) to at least 2,000 primary schools by closing date. Additional indicators in the Results Framework

5. Increase the number of places at the teacher training colleges for primary teachers by 500 by closing date.

6. Increase the number of spaces at tertiary level training institutions for secondary teachers by 250 by closing date.

1.3 Revised PD~

The PDO did not change and all Project documentation and missions maintained that the approved PD~ was relevant despite the variations indicated above. However, baseline values changed from 2000 values to 20044 values based on which the target values are assessed; while indicator 4 changed after extending the DSS initiative to all public primary schools.

Indicator 4. Provide Support to Schools (DSS): (a) within the first quarter of the school calendar year to some primary schools by March 31, 2007; and (b) to at least 2,000 primary schools date.

1.4 Main Beneficiaries

Provide DSS grants to at least 95% of all public primary schools.

6. The PAD did not provide beneficiaries. Based on the project components, the ICR identifies primary beneficiaries of the Project as presented below.

4 Joint Mission Aide~Memoire, October 24-November 4,2005.

3

Beneficiaries Associated investmeDfs 3 million pupils attending public primary schools Provision of school grants (Direct

Support to Schools) and implementation ofthe School Health Package.

Existing and future students attending the four Investments towards the refurbishment national secondary schools (about 700 students per of national secondary schools. school per year) Existing and future teacher trainees attending the Investments in the newly constructed new teacher training college (about 605 trainees per Teacher Training College of Machinga year); and at the three university colleges. and at the university facilities at Malawi

Polytechnic, Chancellor College, and Mzuzu University.

29 university lecturers Investments in higher education training for the universitylectures

District Education Management (DEM) officials Investments in training and sub-national and members of the School Management grants through the Direct Support.to Committees School initiative. 650 head teachers Investments in management training

1.5 Original Components 7. The Project consisted of six components:

8. Component 1: Teacher capacity development (US$15.5 million). The component would support efforts to improve quality and expand capacity of teacher development and training at all levels through: (a) refurbishment of education facilities in universities (Chancellor College, Malawi Polytechnic and Mzuzu University); (b) construction of a new teacher training college; (c) staff development for lecturers and teachers; (d) student assessment surveys to establish a baseline against which student achievement could be measured.

9. . Component 2: Quality improvements and inputs (US$3.7 million). This would improve the conditions of learning at selected secondary schools through: (a) refurbishment of four national secondary schools; and (b) provision of additional textbooks for graduating teachers deployed to the Community Day Secondary Schools (CDSS).

10. Component 3: Mitigating externalities affecting the quality of education (US$3.0 million). This would enable provision of a school health and nutrition package to all primary schools through the distribution of Vitamin A and iron-folic acid to school children under 10 years old, de-worming, treatment of malaria and fever. and the promotion of good health and nutrition practices.

11. Component 4: Direct support to primary schools (DSS) (US$3.7 million). This component would enable supply of basic learning materials to schools while strengthening the participation of communities in school management through: (a) provision of grants to all public schools and District Education Management (DEM)

4

units; (b) media campaigns; and (c) training of education sector staff at all administrative levels.

12. Component 5: Capacity building and policy development (US$1.4). This would be done through: (a) national education policy consolidation and capacity building as evidenced by (i) development of a medium to long-term education sector strategic plan; (ii) development of a teacher education policy, strategy and model; (iii) initiation of discussions on the formulation of a local language of instruction policy; (iv) supporting implementation of the new primary curriculum; (v) building capacity and develop fiduciary procedures for a wider SWAp; (vi) preparing operational plans for outsourcing hostels and catering services for higher education institutions; and (vii) training secondary school managers; (b) support to the implementation of Government decentralization policy through; (i) development of a training and capacity building plan for central and decentralized staff; (ii) supporting implementation of training activities at district level; and (iii) financing other inputs for institutional strengthening of the districts.

13. Component 6: Project Implementation Unit and Contingencies (US$ 4.9 million). The component would support the physical implementation and management of fiduciary and procurement issues.

1.6 Revised Components

14. The project was not restructured. However, there were revisions in the operational scope of project components notable of which were: (a) increasing the number of schools benefiting from the DSS from the planned 2,000 to all 5,086 public primary schools due to the complexity of selecting beneficiary schools. Government decision was made at the February 2004 Joint Sector Review and officially embraced by the Bank at the mid-term review in 2007; (b) reducing the operational scope of especially the civil works sub­components of Components 1 and 2 arising from the estimated US$4.5 million budget overruns realized· at the mid-term review of2007.

1.7 Other significant changes

15. Project extension. On July 23, 2010, the government requested to extend the end date for the Project from September 15, 2010 to December 15,2010 in order to finalize civil works and procurement of some items. The extension was approved by the Bank on September 13,2010 based on a task specific action plan.

16. Reallocation of grant proceeds. A request to reallocate grant proceeds to various expenditure categories (works, goods and vehicles and equipment, consultant services, workshop and training, DSS and operating costs) was submitted by the government on July 21,2009; and an approval was granted on August 4,2009.

17. Reduced implementation scope. The scope of the project was reduced after mid­term. However, there was no formal restructuring because the PDO did not change -which was the only requirement for a restructuring at that time. The reduction in scope

5

was due to exogenous factors related to the costs of civil works. Annex 2 shows what was implemented under this modality together with implementation gaps.

2. Key Factors Affecting Implementation and Outcomes

2.1 Project Preparation, Design and Quality at Entry Rating: Moderately Unsatisfactory.

18. Project preparation. A sound and comprehensive background analysis was undertaken at project preparation with focus on public expenditure in Malawi5, a baseline study for secondary education in Malawi6 and the comprehensive situational analysis of education in Malawi 7. This analytics was complemented by preparation of strategic papers and plans including the National Strategy for Teacher Education and Development (NSTED) and the National Strategy for Community Involvement in Primary School Management and the Country Status Report (CSR). In 2008, a Public Expenditure Tracking Survey was initiated and finalized mid-way through project implementation. The survey contributed to improvements in implementation strategies notable of which was the routing of DSS funds from the center directly to schools instead of going through the local government structures; and the involvement of health personnel in the provision of school health services for effective targeting. Wider consultations were undertaken with a broad range of stakeholders and the pre-appraisal was done as an integral part of the February 2004 Joint Education Sector Review which reaffirmed national ownership and commitment. However, the project documentation has several inconsistency related to the PD~. The PD~ in the PAD, PAD Results Framework and DCA are each stated differently. In addition, the preparation team did not select indicators related to the broader sector policy reforms or learning outcomes. This shortcoming was also noted by the QALPI assessment team during their review. The mid-term review (MTR) team agreed that the· PD~ and original indicators were still appropriate in light of the data challenges in Malawi which indicates the contextual challenges that were faced by the Project at preparation.

19. Project design. The broader concept of improving education quality was relevant and in line with the governments national goals and the 2004-2006 CAS. A combination of strategies to improve the education system capacity and enhance school effectiveness; coupled with the need to consolidate policies for a broader sector program was worth pursuing through this operation. There was also a need to increase the number of

5 Al-Sammarrai Samer and Hassan Zaman (2002); the Changing Distribution of Public Education Expenditure in Malawi. IDS Sussex University and World Bank; which greatly infonned the decisions around development of a costed and prioritized ESSP and the need for Government to divest from some areas within higher education.

6 Gorgens, M. (2002); Baseline study for the Secondary Education Project (SEP) which enabled identification of gaps in secondary education provision and the need to refurbish the national secondary schools.

7 World Bank (2004); Malawi Education Country Status Report: Cost, financing and school effectiveness in Malawi - a future oflimited choices and endless opportunities. Africa Region Human Development Working Paper No. 78.

6

qualified teachers in light of the high proportion of unqualified teachers in the system. The government's commitment was reflected in the Letter of Sector Policy of 2004 that provided the sector reforms to be undertaken which included: (a) teacher training reform - also known as the 1+18; (b) commitment to construct two new teacher training colleges (one of which was to be financed by the ESSUPl); (c) increased financing to the education sector; (d) development of the Teacher Education and Development Strategy (NSTED); (e) facilitating the introduction of fee-paying students in public universities; and (f) the policy oriented dated covenants (i.e. DSS, human resources development policy, costed and integrated sector plan, teacher distribution formula, rehabilitation and maintenance guidelines for the secondary schools, and higher education financing). In retrospect, the design was ambitious but reflects the high Government commitment to address the education needs of Malawi at the time.

20. Quality at entry. The Quality Assessment Group (QAG) Quality at Entry Assessment (QEA7) rated the project design as Moderately Satisfactory (3) due to the soundness of analytical work and the relevance of the PD~ and project components to the education needs in Malawi but noted the complexity of the PDO. However, the Quality Assessment of Lending Portfolio (QALP~ 1) panel rated the design as Moderately Unsatisfactory (5) based on the ambitious nature of the PDO in relation to the project components, and the omission of key elements in the indicators. The ICR team agrees with the QALP review and assessment on the ambitious nature of the PD~ and the problems with the omission of key elements in the indicators.

2.2 Implementation Rating: Moderately Satisfactory.

21. Institutional framework. Overall project strategic guidance and implementation was the responsibility of a high level Project Steering Committee (PSC); supported by a technical committee that was chaired by the permanent secretary and charged with regular review of project implementation progress. Actual implementation was the responsibility of component managers who were technical officers of the Ministry of Education (MoE) that were supported by the Education Development Management Unit (EDMU) which took responsibility of project operations. Despite the delays observed in the filling of critical positions at the EDMU (also noted in the QALP report) the project was able to adhere to established fiduciary procedures. The institutional framework also enhanced the realization of key results under the policy objective in short period of time.

22. Reduced implementation scope. Malawi experienced high inflation between 2004 when the project was prepared and 2007-08 when the project began the civil works components. As a result, construction cost exceeded the original costs estimates and created a financial gap in the project. By mid-term review, the total estimated cost overruns were at US$4.5 million. Some of this gap was mitigated by net SDR exchange gains of US$l. 7 million but an estimated US$2.8 million deficit still remained. The gap

8 The reform was designed to provide one year of pre-service training and a second year of in-service.

7

necessitated a reduction in the overall civil works component of the project and limited the procurement of equipment for some facilities. Civil works in the national secondary schools was limited to refurbishment and expansion plans were halted, planned construction in the university colleges was also reduced along with the procurement of equipment for the facilities (see Annex 2).

23. Pa.rtnership building. The project supported DSS and school health and nutrition package programs were initially implemented on a pilot basis. Implementation of these activities was so successful that other donors wanted to provide parallel financing to scale them up and expand the programs countrywide. 9 The additional resources helped to consolidate the lessons learned and expand the programs throughout Malawi. In addition, the collaboration and partnerships provided a foundation for improved project implementation as well as for the work on a broader sector program.

24. Incomplete civil works. Delays in the recruitment of the engineering team of the EDMU (project engineer, senior architect and quantity surveyor who were recruited in 2007) affected the timely completion of civil works. For example, Mzuzu University was estimated to have completed only 77 percent of their civil works due to contractual delays; Malawi Polytechnic and Machinga had significant gaps in the provision of equipment for their newly constructed facilities; and Blantyre secondary school laboratory facilities were not completed. At project closing however, the government and Bank were still committed to the completion of the civil works and the procurement of the required equipment for the project institutions. All of the unfinished construction and procurement of equipment will be completed using resources from the new IDA­supported project to Improve Education Quality in Malawi (Cr. 4753).

2.3 Monitoring and Evaluation Design, Implementation and Utilization

Rating: Moderately Satisfactory

25. Monitoring and Evaluation Design. The project PD~ was stated differently in the Development Grant Agreement (DGA), the PAD- and the PAD results framework. The ICR team judges this to be a major design weakness because the wording, albeit similar, had subtle differences that created problems for assessing impact. There were four PD~ indicators listed in the DGA and six indicators in the PAD results framework -­four of the six results framework indicators were the same as those in the DGA. The ICR team felt that there were other shortcomings related to the design of the project monitoring and evaluation (M&E). The design team did not include indicators related to learning outcomes or sector policy and the indicators that were selected, reflected outputs rather than outcomes. This may have been related to data limitation issue which prevented the inclusion of a more robust set of indicators. There was also a problem with the lack of clear targets for the intermediate indicators. In addition, once the scope of the

\I UNICEF and GTZ provided parallel financing for the school health and nutrition packages and DFID for the direct support to schools program.

8

project was reduced, the targets were not revised which complicated the completion report assessment of implementation. Some of these issues were also observed by the QALP-I team but were not modified or addressed during the project mid-term review. Although the project components included activities related to primary, secondary and higher education, the design of these components to contribute to learning outcomes across these subsectors was limited. On the whole, the adequacy of the M&E design is rated Moderately Unsatisfactory.

26. Monitoring and Evaluation Implementation. The collection of education data was reasonably well instituted during project implementation. The monitoring and evaluation system is now updated annually and a data verification system is in place. Education administrators now have data for outcome indicators and the EDMU and project component managers can regularly monitor project operations. All of the data collection has been integrated into the existing Education Management Information System (EMIS) under the planning directorate and is supported by the research and monitoring unit. This ensured efficient availability of reliable and accurate information for the project; including mainstreaming of project reporting into existing systems. With the system in place, the planning directorate is now looking to fill data gaps so as to enhance and improve the system. The directorate recently conducted a student performance survey that provided a baseline data for primary education learning achievement that will be used for monitoring achievement beyond the project period. In addition, the planning directorate conducted a school health and nutrition baseline survey and an impact survey of the DSS. Unfortunately the DSS survey focused more on access and perceptions of beneficiaries rather that the impact of the DSS on learning outcomes and improved school management. Despite this shortcoming, on the whole,' M&E implementation is rated Moderately Satisfactory.

27. Monitoring and Evaluation Utilization. The data collected through project operations were used in a number of ways. The baseline data for the school health and nutrition (SHN) survey informed the development of the National School Health and Nutrition Strategic Plan. The Primary Achievement Sample Survey (PASS) provided the baseline for all future primary school achievement surveys and led to the establishment of a national learning outcomes assessment system. This survey also provided the benchmark for learning outcomes at standards 3, 5 and 7 and will now be monitored well beyond the end of the project. The data gathered also provided the basis for the development of the National Education Strategic Plan (NESP). In addition, the EMIS system is now used for planning disbursements to districts and schools for the DSS as well as for drug purchases and distribution to schools for the school health and nutrition packages based on the enrollment data. Utilization of the M&E is rated Satisfactory.

2.4 Safeguard and Fiduciary Compliance

28. Safeguards compliance. The project was given B and S2 ratings for environmental and safeguards screening due. to the construction and rehabilitation activities that had to be undertaken. A Resettlement Action Plan was developed and approved consistent with· project preparation modalities. At implementation, the

9

construction of the new Machinga Teacher Training College (TIC) in Liwonde called for site specific assessments. Voluntary resettlement and monetary compensation of households in the villages of Mliwo (42) and Mbaya (33) was negotiated and implemented - although delays were reported to have affected the start of civil works. All documentation including Resettlement Compensation Payment Agreement Forms for all beneficiaries exists at the Ministry. The report on the Final Compensation of Customary Land exists and indicates that the process was concluded in February 2008.

29. Fiduciary compliance is rated Satisfactory. The project was rated medium to high risk in relation to fiduciary aspects at design and necessary actions were proposed to mitigate some of the risks. With regard to fiduciary compliance, all financial and procurement procedures agreed to at the time of design were complied notwithstanding some delays for the civil works procurements; staff positions were also filled in a bid to strengthen the ministry's capacity to implement the project. Four external audits were also undertaken.

2.5 Post-completion OperationlNext Phase

30. National Education Sector Plan (NESP) 2008-2017. The implementation of the 10 year NESP by Government is a key post completion operation. The NESP sets out priority areas for basic, secondary, teacher and higher education and technical and vocational training and has been agreed to by government and the development partners. The NESP paved way for the formulation of a Sector Wide Program (SW Ap) for the education sector supported by an investment plan which is the basis for the medium and long-term expenditure framework. Moreover, the NESP enabled the development of annual sector work plans against which· funding is provided and education service delivery monitored as well as the creation of a pooled fund that the International Development Association (IDA) agreed to join with other development partners. With the NESP and SWAp in place, IDA and the Fast Track Initiative Cataltic Fund (FTI) agreed to continue to support education in Malawi with a new project. l . The objective of the new project, Project to Improve Education Quality in Malawi (PIEQM), is to continue to improve access and equity and enhance the quality of teaching and learning as well as complete the outstanding ESSUPI activities. The Ministry of Education, Science and Technology (MoEST) is committed to the completion of the ESSUPI activities, consolidating lessons learned from the ESSPI and implementing the new PIEQM project activities. It will be important for the Bank to continue its work with the MoEST to build the capacity necessary to ensure continuous follow up and quality implementation

3. Assessment of Outcomes

3.1 Relevance of Objectives, Design and Implementation

10 Project to Improve Education Quality in Malawi (PIEQM) (Cr. 4753) in the amount of IDA US$50 million and FTl US$90 million became effective February 2011.

10

Rating: Satisfactory

31. Relevance of PDOs. Although the PDQ is stated differently in the project documentation, the overarching themes of enhancing capacity and improving learning outcomes at the school level continue to be highly relevant to the country needs as reflected in the Growth and Development Strategy for Malawi (2006-2011) and the Country Assistance Strategy (CAS). The government continues to acknowledge the critical role that education plays in economic growth and recognizes that much work remains to meet their goals. Many issues remain: (i) access to secondary education in Malawi is still low with a GER of 17 percent; (U) only 51 percent of students pass the Malawi School Certificate of Education (MSCE) at the end of secondary education and decomposition by type of school reveals much lower levels (33 percent) among students that attend community day secondary school (CDSS); (iii) limited infrastructure coupled with lack of instructional materials is a common feature in the CDSS; and (iv) the ratio of pupil to qualified teacher ratio (PqTR) for primary schools of 88: 1 is still high coupled with the inequitable teacher deployment across schools.

32. Relevance of design. The project design was relevant and informed by comprehensive education sector analysis. The Government's commitment and desire to holistically address the binding constraints to education quality was justified hence the integration of approaches that address teacher issues across the education system (primary to higher education) together with exogenous factors that affect learning like school health and nutrition. The design continues to be relevant and is considered very visionary.

33. Relevance of implementation. Due to capacity challenges in Malawi, implementation of the ESSUP 1 was centralized and the EDMU was necessary to support project operations for timely and quality project implementation. However, there were also central level challenges such as delayed recruitment of core staff and poor performance of some contractors that affected implementation progress. Some degree of lower level decentralization, especially of small contracts based on thorough capacity assessments of respective beneficiary institutions should be considered for future operations for enhanced beneficiary involvement in project supervision.

3.2 Achievement of Project Development Objectives

Rating: Moderately Satisfactory

34. The ICR notes the variations in the PDQ within the PAD; and between the PAD and DGA. The ICR assessed the project outcomes based on the DGA PDQ. The ICR also recognizes that the indicators are more output based rather than outcomes due to data limitations earlier noted. However, an attempt has been made to link the indicators to respective outcomes despite the lack of clarity on the assumed linkage in some instances which points to the complexity of the project and this exercise.

Enhanced number and capacity of qualified teachers

11

35. To assess progress made on this outcome, the ICR uses the 2004 baseline values and compares them with the actual values realized by project completion in 2010 vis-a-vis the targets that were set. "

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............. ....... ........... Table l:·PJ)O·· .·illdt!nto~ by, •. b~tlijl~.and·staUjs .• illZOH)'_'M""_""'~'''' ........................................... " ............................. ·· .•. rji~s.;.li;. ; .. ·\i.··~~.·· ... l;.;;·~i·.·.!.'· .... · ... Q .... , .. ;ig. ~l.·~~~i.··. fA··•t· ......... '1' .. V· .. "'." ...... ".'':.' '." • ".' .n.A··· . '.

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; . , ' .. '. trajtl.ing'in-sti.tlitions fOfSli\(lOniar:y

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36. In regard to primary education, results in Table 1 indicate that the Pupil to Qualified Teacher Ratio (PqTR) for Standards 1-8 declined from the 100: 1 in 2004 to 88:1 by 2010 but did not meet the set target levels of 80: 1. On the whole, the number of qualified primary education teachers increased by 9.8 percent (from 38,841 to 43,065 between 2006 and 2010); which is an average annual increase of 443 teachers. The increase was partly due

,t"

Figure 1 Qualified primary teachers and percent female; Malawi 2006-2010

50,000 45,000 40,000 35,000 30,000 25,000 20,000 15,000 10,000 5,000

r-·-··-··-·--·--·~··--· .. ·-· .. ·--·----·--.....,. 45.0 , 40.0 . 35.0

1 ... "., ....... " .................. ".,." ................ , ........ " ....... _." .. , .. , ..................... _" ........... ,\ 30.0

E~~~J25.0 20.0 15.0 10.0

f .. _ ......... , ....... "" .•.•• , ..• " ...... ,_ ............ ,."" ..... _ ............... " .. _ ...... "" .... j' 5.0

,---.--t2?~.£.I~~~1,,:i;~Eri?~0=~~~1 0.0

33.6 40.7

to the introduction of the new teacher training model 1 + 1 (one year of pre-service teacher training and one year of in-service teacher training through distance education) buttressed by a new teacher allocation formula and continuous professional training programs. This. indicates that government was committed to improving the PqTR. However, the failure to achieve the set target may have been due to either unrealistic target setting, increasing enrolment of students (primary enrolment increased from about 3.12 million learners in 2004 to 3.28 million learners in 2010), inadequate wage provisions hence inability to recruit teachers as planned, and/or teacher attrition levels (estimated at about 4.3 percent).

36. The second indicator of increasing the number of spaces at the teacher training colleges for primary teachers was fully met and exceeded the set target as indicated in the table. This resulted from the construction of a new teacher training college (TTC) at Machinga in Liwonde. The first cohort of605 students (151 girls) was enrolled by project close, surpassing the planned capacity of 540 learners. The resource provisions (human and physical) made at the TTC is expected to generate competent teachers with greater instructional abilities. The linkage with existing primary schools had also been established by the TTC for school practice purposes, thus enabling more practical

12

oriented instruction. The TIC is expected to raise the number of qualified teachers per year from 443 to about 1048 assuming non-reversal of the new teacher training model.

37. At the secondary education level, the set target of improvements in the PqTR at the secondary education level was not met (PqTR of 70: 1 was realized by project close compared to the set target of 65: 1). This may have been due to either unrealistic target setting, excessive student enrollment compared to teacher recruitment andlor high teacher attrition at the secondary education level. However, the number of spaces at the tertiary level training institutions for secondary teachers increased to around 1000 compared to the targeted 250 thereby meeting the target for the fourth indicator. The increase was due firstly, to the introduction of the dual-track admission system in the university colleges where private and public non-residential students are currently being admitted, hence a departure from the bed-capacity public enrollment criteria. Secondly, post-graduate (masters and PhD levels) training opportunities were provided to 29 lectures which resulted in development of new teacher training programs and innovative pedagogical practices that improved capacity of both the instructors and teacher graduates. Enrollment to postgraduate programs was also reported to have increased in all the colleges from lows of 30 to about 80 per year. In addition, the continuous upgrading of primary teachers from certificate to diploma and degree levels conducted through the newly introduced upgrading programs was also another factor, which eases their transition from primary to secondary teacher status. Instructional materials were also provided to CDSS secondary schools and university colleges to augment teacher capacity to engage in quality teaching-learning processes.

Enhanced capacity and quality of education sen-ice delivery

38. The ICR assesses this outcome by making further reference to the PD~ statements in the PAD which show that the outcome was to be achieved through 'fostering community participation and by strengthening the management of human and financial resources at district and primary school levels'; and the proxy measure would be the grants allocated through the Direct Support to Schools (DSS) initiative indicator as provided in see Table 2.

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39. Table 2 shows that the DSS indicator was fully met and performance exceeded the set target. Through the implementation of the DSS initiative, II community participation and management of human and financial resources at the district and school levels improved together with the capacity and autonomy of education management structures. The innovative enrollment based grants to all the 5200 public primary schools enabled acquisition of non-textbook materials for teachers (an incentive for improved performance among teachers) and learners in the 2007/08 and 2008/09 FYs. In 2009/10 the partnership with DFID enabled the DSS implementation including additional provisions to schools towards minor maintenance. Results include direct provision of funds to schools with resultant ease on funds tracking and effectiveness. The school based procurement modalities enhanced financial management capacity of the school management committees (SMCs) and augmented transparency and accountability at that level. The management of the human and financial resources at the district and school levels was improved by the provision of a complementary administrative grant to the district education management (DEM) offices. The DEM level grant was an aggregation of a total worth of US$5 per school in the 2007/08 FY, which rose to US$lO in the 2008/09 FY and finally to US$30 per school in the 2009/10. The grant resulted in increased teacher and school level inspection by the DEM.

40. The DSS evaluation report12 indicated that: (i) 99 percent of the pupils in the sampled schools reported to have benefitted from this program; (ii) 70 percent of the head teachers agreed that DSS reduced learner absenteeism, and contributed to improvements in learner performance (89 percent); (iii) 95 percent of the teachers reported that DSS led to the availability of teaching-learning materials in schools; (iv) DSS enabled active engagement of district assemblies with local community leadership and also resuscitated School Management Committees (SMCs) and Parent Teacher Associations (PTAs). The 2008 Public Expenditure Review (PER) reported that school inspection by the DEM was increased to 71.4 percent, while all schools sampled were found to have active SMCs and PTAs which was attributed to the DSS.

II Implementation was guided by a Project Implementation Manual of Direct Support to Primary Schools first printed in 2006 and later revised in April 2007. The manual highlights roles ofal! players at each level, provides implementation steps and procurement modalities to be followed by schools.

12 Ministry of Education, Science and Technology; The Evaluation of the Direct Support to Schools (DSS) Programme Phase 1. December 2008.

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41. In addition to the DSS grants, secondary school management personnel (650) were also trained with special considerations for CDSS over the period 2006-2008. Refurbishment of the national secondary schools also contributed to enhanced capacity and quality of education for over 2800 learners attending these schools annually.

Improved learning outcomes

42. As indicated in the M&E design section, the project did not include learning outcomes indicators. The results framework however, showed that improvements in learning outcomes were expected at all levels through 'provision of enhanced conditions for school effectiveness that wtll contribute to changes in the behaviors of teachers and students '. The proxy indicator was also specified as presented in Table 3. The indicator was fully met and the target of 80 percent was exceeded. Coverage of the school health and nutrition intervention was almost 100 percent. This was enabled by the implementation of the pilot national School Health and Nutritional Program (SHNP) which ran from 2007 to mid 2009 targeting children in all public primary schools. The program involved provision of the following drugs and vitamins to school children: Albendanzole for de-worming; Praziquantal for Bilhazia; Vitamin A supplements -Rentinol; Folic Acid and iron tablets; Paracetamol; and Fansidar. The 2008 Public Expenditure Tracking Study (PETS) also indicates that 84 percent of the schools received antimalarial and bilharzias drugs. No impact evaluation was undertaken to establish the effect of the program on learning outcomes.

".-.• -,.' '"' .. -,<" .. ~, "',~,,,,.-- .• ~ ..... ~., . .., ... ,~ .. ", ... "' .... " ..• ~,.""'.- .•• ,,' .•• ""

Tabltl;3;pDQ.3 i;ndicat()rby ba8clln~1tn(js.tus in 1010 ...... -~~ .. ":" .. " .. -.- .... ·····:l·i;s~i~! .. v~!~,~olr·····~;;;~~·;~;:~~·'·· r~4~f~~iv';i~t'A¢bieveit';~tf dhl.~tur i .~uefi~s'hts ... i.. (261(1) CmuI>letion byl01U

. .. . . .' iFnuiulwor,k(l00i4)} . lneliveteff¢~iive"s¢h~j"heatth';d'""!""""''''''''''''"i4~;;;-"""""""""""'Isij%'6faiipuhjic ··········lApprQximately 98% of the: lrotrlti()n intervention to atJeast80%1 '~ry$Chool .... !target pupils covered. jof~~gv9I,1P (aged lO~by<cIosillgi il$und.er~eofi

:~e.:'"""'M""""""""' .......... , ... ,..... 'i .......................... " ............• .......... ;~Q: ....... '" .... ....... ,J ............................ ,..... ........ .... i 43. Although the indicator target for this PD~ was fully met the ICR team judges this proxy indictor to be inadequate for measuring learning outcomes for primary school pupils. However, the project did support the Primary Achievement Sample Survey. The survey marked the establishment of a national framework to assess progress in literacy and numeracy at the primary level in Malawi, and is based on standardized English and mathematics tests for Standards 3, 5 and 7. The baseline set a benchmark against which future progress on learning achievement will be based. The PASS will be undertaken every other year which interval also permits cohort analysis. Extension of this system to the secondary level is also necessary. The ICR team views this as one of the major accomplishments of the project.

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Development of the broader education sector policy

44. Although there were no outcome indicators for the development of the broader education sector policy, there was an intermediate indicator with a stated target - to have an education sector strategic plan presented and agreed. The project successfully supported the development of Malawi's first National Education Sector Plan (NESP) 2008-2017 13 to which government and the development partners' operations are now aligned. This resulted in Malawi's transition to a sector wide approach (SWAp) to education investment planning, the medium-term sector investment plan (ESIP), and annual programs of work (PoW). A by-product of these activities was the development of a quality sector policy dialogue between the various institutions involved in the delivery of education. This was a transformation for these institutions which previously had only engaged internal discussions. All of this led to an endorsement of Malawi within the Fast Track Initiative (FTI) global partnership, the establishment of a pooled fund and access to the US$90 million FTI Catalytic Fund for the implementation of the PIEQM project, whose design draws from the NESP. All of these activities are considered to be a major achievements for the project and the government.

45. Additional project achievements related to the implementation of sector policy reforms can be seen in the: (a) development of the National Strategy· for Teacher Education (NSTED) for primary and secondary education in partnership with DFID; (b) phased rollout, over a 4 year period (2006-2010), of the primary education curriculum and assessment reform to all primary grades (1-8) with additional support provided by GTZ and DFID; and (c) development of the first National School Health and Nutrition Strategic Plan14 2009.2018 , which is overseen by a muIti:sectoral National Nutrition Committee together with the School Health Nutrition and HIV Technical Working Group. All these strategies and reforms were in place by the time the project closed and all are expected to contribute to improved education service delivery in Malawi.

3.3 Efficiency

Rating: Moderately Satisfactory

46. The National Education Sector Plan (NESP). The development of the NESP that then transitioned into a SW Ap, created an alignment between donor and Government

13 The NESP 2008-2017 articulates Government's view of the Malawi education sector goals, objectives and proposals on how to accomplish them in the long term. Key thematic issues being addressed therein include: expanded equitable access to education, improved quality and relevant education, and improved governance and management for quality education service 4elivery. Progress and outcome indicators are also included to guide sector reviews and progress assessment overtime. Implementation of the NESP will also contribute to the realization of Malawi Growth Development Strategy (MGDS) and international protocols arising from the Education For All (EFA) and Millennium Development Goals (MDGs).

14 National School Health and Nutrition Strategic Plan. School Health and Nutrition Response in the Education Sector. 2009-2018. Ministry of Science and Technology. Lilongwe.

16

programs thereby improving implementation efficiencies and monitoring of outcomes in Malawi. The institutionalization of annual Programs of Work (PoW) with clear outputs against which yearly resources allocation are made is reflective of this gain.

47. Teacher costs. Reducing the number of years for primary school teachers pre­service training from 2 to 1 year as well as the introduction of the dual track admission system (private and non-residential public students) in the public universities, was considered to be an efficient way to fast track qualified teachers int'o the primary education system. However, it is hard to know how much of the cost savings will be offset by the possibility oflowering teacher quality; especially if the trained teachers are not provided timely continuous professional development programs, the necessary resource materials, and supervised and mentored while at work as planned.

48. Post-graduate training for lecturers. For the 29 lecturers who were trained to post graduate levels (masters and doctorate levels), an average unit cost of approximately US$28,000 was spent per lecturer. International postgraduate training costs including living allowances are estimated to range from US$17,000 to US$35,000 depending on location and courses offered. The return of all 29 lecturers to their colleges upon completion of their post-graduate programs enabled the colleges to expand their program offerings and this has resulted in increased student intake. The savings associated with using domestic talent as opposed to international experts coupled with the development of partnerships with international universities have made the post-graduate training program very cost effective one.

49. School level resources. An average of US$766 per school was spent under the DSS over the project period. This is equivalent to US$0.43 per child per year which is much lower than other countries in the region (approximately US$14 in Kenya and US$8.4 in Uganda). Despite the comparatively small amount of money spent per child, per year, the DSS program provided efficient delivery and direct access of education resources to schools that included: (i) support for the creation of institutional structures that enhanced effective utilization of the resources such as the school management committees and the DEM; (ii) capacity building for the school management committees and the DEM; (iii) provision of teaching and learning materials for classroom instruction;

. and (iv) support for school inspection and supervision which increased the number of school inspections and supervision. All of these activities should result in better learning outcomes in the long run. The allocation of resources for the program, using direct disbursement to schools, was based on clustering of schools into enrollment brackets. This approach helped improved transparency in the allocation process and safeguarded against the inflation of school based enrollment figures which are reportedly a challenge face by other countries.

50. Civil works. The allocation of the limited resources for large infrastructure projects at the universities and colleges may not have been the most efficient use of resources. This is especially true in light of the reduced scope of the project. An average of US$4.6 million was spent on construction and rehabilitation at the three institutions of Mzuzu, Malawi Polytechnic and Chancellor College and an additional US$0.75 million

17

was spent on equipment and furniture. Despite these investments, there were still some construction projects that were not completed and all the equipment was not procured for the new facilities. This situation is compounded by the low quality of constructions which is likely to irp.pose unplanned maintenance costs to the beneficiary institutions. However, it is not clear whether more and better outputs would have been realized with the same resources. Further, an average of US$1.2 million per school was spent on the four national secondary schools that enabled them to return to optimal operational capacity. However, refurbishment costs are hard to compare across countries due to variation in scope of works.

51. School Health Package. The cost of delivering the school health package was only US$0.35 per child over the project period. This was consistent with the planned least cost delivery option. This is based on the total expenditure of US$3.22 million for this component over the project period targeting between 2.5 and 3 million learners. Realistic comparison with other countries lS not possible due to differences in program components across countries.

52. Resource leveraging. The project . enabled Government leverage additional resources from development partners through the parallel financing partnerships generated in the course of project implementation; and institution of the pooled fund modality follow up to the transition to SWAp to education sector planning and financing. This enabled continuity of interventions like the DSS and the SHN.

3.4 Justification of the Overall Outcome Rating

Rating: Moderately Satisfactory.

53. The overall outcome rating of the ESSUPI is Moderately Satisfactory. Despite the ambitious nature of the PD~, the project addressed issues that were highly relevant to the national development strategy for Malawi and the CAS. In particular, the project supported the development of a broad sector policy framework that was responsible for the development of the NESP that transitioned into the SWAp and created the alignment . between donor and Government programs. This also led to the institutionalization of annual programs of work (PoW) with clear outputs against which yearly resources allocation are made. This is a major achievement of the ESSUP 1. Although the targets for the PqTR ratios were not been met, it is important to note that substantial progress was made in improving the PqTR ratio for both in primary and secondary schools and without the project interventions the situation would have deteriorated. The teacher education reforms and the learning achievement measurement framework have been institutionalized and have provided a strong foundation for the ongoing work in these areas. All of these achievements will be consolidated under the new PIEQM project. The efficacy of the project was however, compromised by the incomplete civil works and there was limited focus on the learning outcomes.

3.5 Overarching Themes, Other Outcomes and Impacts

18

54. Decentralized service delivery. At the time of project appraisal, the Malawi decentralized system of governance had been launched. The administrative grant for the DEM and the SMCs that was provided within the DSS strengthened the functionality of decentralized structures hence consolidating the policy reform. The revitalization of the SMCs through their roles in the procurement processes executed with support from the DSS also impacted on the functionality of school based institutional structures by increasing their autonomy and management capacity with anticipated improvements in education service delivery.

Institutional change. The development of the NESP 2008-2017 led to the establishment of institutional reforms for effective policy discourse. Six technical working groups (TWGs) were instituted (basic education, secondary education, tertiary education, infrastructure, financial management, procurement and teacher education) under the coordination of the Sector Working Group (SWG) chaired by the Secretary for Education, and supported by the SWAp Secretariat. Similarly. the development of the National School Health and Nutrition Strategic Plan and the implementation of the pilot SHN package resulted in the establishment, of a school health unit. By project close, the National Nutrition Committee and the School Health Nutrition and HIV Technical Working Group had been established. The established links between schools and the health service providers enabled greater appreciation among stakeholders for not only the importance of good health to learning but also on how schools can serve as preventive health service delivery platforms. The institution of the PASS through which learning achievement will be monitored at the primary level also poses new structures through which learning achievement will be monitored.

55. Poverty impacts. Lack of scholastic materials is one of the constraints to education access for poor households. Through the DSS, provision of instructional materials to learners from very poor households was enabled thus enhancing their realization of the right to education. The provision of instructional materials to the CDSS further supports the poverty agenda.

4. Assessment of Risk to Development Outcome

Rating: Negligible. 56. The risk to development outcome is negligible due to the high government commitment to education. A new project is already in place to further the gains made while the institutional framework has also been well laid to further the quality education agenda in Malawi.

5. Assessment of Bank and Borrower Performance

5.1 Bank Performance

(a) Bank Performance in Ensuring Quality at Entry Rating: Moderately Satisfactory

19

57. The Bank team based the project design on technical assessments and sustainability simulations of the teacher training system to ascertain viability of project interventions. The development of the project components and objectives took into consideration these assessments as well as the stated need for improved quality of teaching and learning within the broader sector policy agenda. However, the design could have been strengthened with more clarity and simplification of the PD~ as well as the selection of appropriate indicators that focused on outcomes rather than outputs. In addition, the design team could have provided more realistic cost estimates of the respective components for full implementation of the Project.

(b) Quality of Supervision

Rating: Moderately Satisfactory 58. Supervision was conducted through continuous communication between the TTL and the implementing teams, augmented by implementation support missions ts• All of these activities contributed to project implementation and enabled compliance of all fiduciary and safeguards policies. A project mid-term review was undertaken in November 2007 and the key findings were the: (a) affirmation of the relevance of the PD~; (b) inadequate resources to finalize project activities which led to a reduction in the project scope and a subsequent partnership with DFID to further the implementation of the DSS in the last year of the projectl6; (c) recommendation for the periodic supervision of all project sites which improved project performance post MTR; (d) inadequate information flow between EDMU and component managers which was resolved through clarification of roles and responsibilities of various implementation organs. The guidance provided improved project performance after the MTR. The roles of the EDMU and the Planning Directorate in project implementation were clarified, disbursement mechanisms of the DSS improved and health service delivery structures integrated in the implementation of the school health component. The Ministry applauded the support provided by the Bank team which greatly improved their implementation capacity especially through the diverse expertise fielded on missions.

(c) Justification of Rating for Overall Bank Performance Rating: Moderately, Satisfactory

59. The ESSUPI is relevant and the preparation was supported by sound analytical work despite shortcoming in the indicators which may have resulted from lack of data. The Bank team's ability to negotiate a grant for the Malawi Government is also commendable despite its having been prepared as an investment loan. The packaging of the project components reflects the Bank's responsiveness to client needs which was also commensurate to the high Government commitment despite its ambitious nature. The strategic nature of the ESSUPI is also commendable in regard to: (a) facilitating the

15 Nine technical missions and a mid-term review were conducted over the project implementation period.

16 DFID provided an additional US$500,OOO to support DSS.

20

development of the education sector SWAp follow up to the development of the NESP; (b) enabling development of key sector policies like the SHN; (c) contributing to the expansion of primary and secondary education teacher training opportunities; (d) contributing to quality pedagogical practices through access of university faculty to higher education programs with long lasting benefits in the pursuit of quality teacher education; (e) supporting education management systems at the district and school levels through the DSS; (f) providing opportunities through which Government leveraged other development partner resources thus grounding the cause for the resultant pooled fund arrangement currently ongoing under the PIEQM.

60. The Client rated Bank Performance as 'Highly Satisfactory' justified by the timely granting of No Objection Certificates, frequent reminders to MoEST on required actions which enabled implementation to be on course, timely funds disbursement, and the collegial manner in which technical support by Bank teams was provided.

5.2 Borrower Performance

Overall Borrower Performance Rating: Moderately Satisfactory

61. The rating is based on the Government's commitment to improve education quality in Malawi. By 2007/08, education public recurrent expenditure had.risen to 19.4 percent of Government recurrent expenditure and 4.8 percent of GDP, compared to 16.4 percent and 3.7 percent respectively in 2001/02. The government also developed the National Education Sector Plan (NESP) and immediate mobilization of funds for its implementation which included the introduction of a pooled fund. In addition, the government fulfilled all agreed policy covenants as well as the fiduciary requirements, Project implementation guidelines and manuals were developed that enabled standardization and quality assurance of operations. Project disbursements were at 99.8 percent when the project closed, despite the problems with the quality and completion of the civil works and slow recruitment of staff for the EDMU. This was a solid achievement considering the complexity and breadth of the project. The rating is also consi'stent with the Client's rating of their performance.

6. Lessons Learned

62. Realistic project planning. Despite the sector needs and desire to address identified issues, realistic planning and budgeting is always important for successful and quality project implementation. The project scope had to be reduced substantially due to financial constraints.

63. Monitoring. supervision and engagement of beneficiaries in project supervision. All contractors need to be supervised by the implementing agency for quality assurance. Engagement of beneficiaries is one way of ensuring ownership, effective project supervision, transparency and accountability. The highly centralized design of the ESSUPI did not provide ample space for beneficiary engagement in contracts management which may have contributed to the low quality of civil works. The need to devolve some functions' to beneficiary institutions hence deserves attention in future

21

operations; e.g. procurement committees of university colleges could be assessed and the procurement functions devolved to that level under the overall supervision of the center on a selective basis.

64. Importance of education sector plans. Education strategic plans are vital to the realization of effective donor coordination. They provide for a strategic approach to managing sector investments while consolidating national ownership for programs and projects.

65. Successful implementation of soft components. Support to policy and strategic plans development together with training and baseline surveys, yielded more long-lasting results including reforms in the institutional framework which had not been anticipated and contrary to normal practice. This could be attributed to the high Government commitment to reforms and its worth replicating elsewhere.

66. External versus. integrated project implementation units. A number of lessons were learned related to the establishment of an independent project implementation unit. Staff departures mid-way through project implementation affected progress of some components and created communication challenges for project implementation. In addition, there was no capacity transfer to the ministry once the project closed and the EDMU was dissolved. For effective capacity development, integration of project staff within the executing agencies based on a clear capacity assessment and a phase-out plan is considered more effective than a standalone implementation unit.

67. Timely recruitment of project staff is essential for effective project implementation. Critical staffwere recruited mid-way through project implementation which led to delays in the implementation of some components. Project readiness should include the recruitment of critical implementation staff and be a condition for Project effectiveness.

7. Comments on Issues Raised by BorrowerlImplementing Agencies/Partners (a) Borrower/implementing agencies - See Annex 7 for the full text of the Borrower's

portion of the lCR.

(b) Cofinanciers 68. There were no co-financiers as required by the regulations on co-financing. However, parallel financing was provided by development partners to complement IDA resources. Notable of which was at least US$500,OOO from the DFID that supported the last cycle of the DSS; UNICEF that co-financed the procurement of drugs for the school health and nutrition package; and GTZ that supported Machinga TIC access internet facilities to enable immediate functionality of the facility.

69. The DFID acknowledged the strategic nature of the ESSUPI especially in regard to the development of the NESP and the DSS pilot to schools.

22

Annex 1. Project Costs and Financing

· 3; Mitigating externalities iaffecting the quality of

15.5

3.70

3.00

104.78

105.40

3.22 107.33 ieducation:SHN . ........ .... .. ... ....................... ..... ~ .. '.J::'':'''':':.~':':''{;?':: .............................. : .................................................................. , ........................................................................... , .... . : 4: Direct Support to Schools - !

lOSS 3.70

.........................

· 5: Capacity Building and !I>~li~yJ?~y~l~pl!l:~Ilt .... . 6: Project Implementation !yIlit~~.g~Il!~Ilg.~Il~~~~ .

!Physical Contingencies 0.00

iPrice Contingencies 0.00

32.20

3.90

1.54

3.33

0.00 ..•..•................•......

105.40

110.00

67.96

99.78

0.00

0.00

.00

.00 99.78

.............................

, .•. , •••• " ,,_~m' W ."". , •• , .. ···»"w··· "'_~::"-"'T'" "::-."' •. ,:','~'.":: .. ~., .. ;.:"::" ..•. -:.," . .,-"".-' -'''~-1 " .. ,'., ............. ::.,.: ... : ".": .. ' .. ~ .. "W'"'''.''...,_ . .,{:' ", .. "

iA.ppr~L~ali.i\ctual1ll~tel

• _ ... :~,".".,,_'~ .'"."_._'., '" "_ _ .... ".,,_ ~~, .. "'~, .. ,._,~_ ... ,)" ... _.~Yo" •• " .' ~""" '."-"

IDA GRANT FOR DEBT VULNERABLE

! .. l'yp~(¥f .. 1 ~~tjl#ate IstE~thll~~tefPercelltagc: ;('ofinaDcillgj (USD 1 (t.IS» [6fAp:praisa~ j lmiUions) ImUUo'a;s)i

.' ~," -~.,_ ..• ,_ .. .,,, .•• "-~ ...•. ,~ .... h."'_' __ ''',,," .,~,.", "."'-~.-,4 .. -~.~".,.,.,."_ ..... __ ,,.w ...• ~,., .•. ;,., ;: •• _ J,.,~,,~ .... ,~,,_.~_~ .. ,., ,."_.~"""_.~,' ... , .~; !

:32.20 '99.70 , __ " •• ,'_'" ,~.~",,~~"" ~"".,._ ..... ,_,,~_.,,~.,, ... "~." •• w~ .. '~ __ .~y ,,,~,",V ,.'~" """"~'~"~'" ~ .. "_"_~"L __ ",,. "_""n,"~"_" __ '~~""~ '" .~_,_~ ___ :''''_ ... _ •• ~,~,_ ....... " ... "_,

23

Component and sub­

comPQoent

Planned activities/Targets

Annex 2. Outputs by Component

Actual Activity Implementation! Actual Outputs within the Reduced Scope

Implementation Gaps

Component 1: Teacher Capacity Development

Outcomes and Impact

Sub comoonent!.l: New construction and refurbishment of education facilities related to additional needs of teacher training. Refurbishment a. Civil works Civil works: One ground level structure Refurbishment works The infrastructure outputs and expansion (construction of was erected comprising: under this subcomponent of Faculty of new workshop, a. 3 workshops (metal, plastic and Electrical and electronics directly contributed to Education two additional welding) teaching laboratory improvements in the teaching Malawi laboratories of b. 2 laboratories for chemistry and - learning conditions of the Polytechnic; physics, biology, physics with small tutorial rooms; Staff Offices higher education institutions with staff chemistry, c. 2 computer laboratories for that produce secondary development electrical and computing and auto card Furniture and Equipment education teachers.

electronics d. 1 mini lecture theatre of 100 person installations including media teaching, a multi capacity teaching facilities media room for e. 1 design and drawing room micro teaching f. 1 micro-teaching room and a computer room, a computer I Equipment and teaching/learning aided laboratory, a materials: drawing and design room, a mini lecture room, staff offices)

b. Acquisition of equipment and teaching/learning materials

c. Staff development plan

d. Consultancy services

Equipment and furniture installations were only done for the mini lecture theatre due to financial constraints.

The faculty of education was also supported with 3 computers and printers; and an initial stock of library books for improved student learning.

StafJdevelopment: • training four (4) faculty of education

24

Subscription for periodicals and journals

Provision of additional infrastructure also enables expansion of enrolment and thereby contributing to the increase in ·the number of qualified teachers available to the education system.

Supporting trammg of university faculty to higher levels also enhances the capacity of the teacher training institutions to deliver quality programs. The introduction of additional programs as a result of the training provided to staff also increases enrolments and the

Refurbishment and expansion of Chancellor College; with staff development

e. Selected consumables for the duration of the project

a. Rehabilitation of lecture rooms, labs, audio visual centre

b. Construction of computer room and micro­teaching lab, reprographic unit, staff offices, additional lecture theatre and audio

lecturers to Masters level • one (I) lecturer trained at Ph.D level

(completing by end of2011).

Civil works: • An administration block for the

Faculty of Education with staff offices and board room constructed and completed in 2010;

• Existing audio visual centre expanded by 1 room and equipped with furniture

Equipment and teaching/learning materials: • 25 desktop computers and printers for

the education faculty staff purchased • heavy duty photocopiers purchased

25

Construction of computer room and micro-teaching lab

Construction of additional lecture theatres and reprographic unit.

Subscription for periodicals and journals

resultant teacher outputs.

Installation of new equipment also implies the institutions' ability to produce teachers with ability to introduce modem and innovative ways of instruction with a higher likelihood of better outcomes from the learners' side.

The ability of the colleges to retain the trained staff also translates into efficiency gains.

Refurbishment and new works atMzuzu University; with staff development

visual centre c. Provision of

equipment and teaching -learning materials

d. Staff development plan

e. Consultancy services

f. Selected consumables for the life of the project

a. civil works (construction of new classrooms, laboratories, and offices, an addition of a computer room to the library, kitchen and dining hall, and hostels for 200 students); b. provision of equipment and teaching/learning materials; c. provision of library books including subscription to periodicals and journals; d. support to the implementation ofthe staff development plan; e. provision of r~uisite technical

• 2 vehicles purchased. Staff development plan: • Eight (8) lectures trained to Masters

level • Four (4) lectures trained to PhD levels

(aU had returned by the time of compiling this ICR).

Civil works: a. two level teaching block comprising

laboratories for physics, chemistry, biology, language and geography instruction, classrooms and ablution area. By January 2011, completion of this facility was estimated at 80%.

b. auditorium - one level block housing two lecture theatres of 250 seating capacity each. By January 2011, completion of this facility was estimated at 60%.

c. Kitchen rehabilitation and expansion of dining room. By January 2011, completion of this works was estimated at 85%.

External works, landscaping of pathways and cabling had not been started by January and required substantial effort.

Library books: Textbooks and journals worth 70,OOOUS$ were provided.

26

Works 85% complete but remaining segments to be completed under the new project.

Subscription for periodicals and journals

Subcomponent b.. Construction of new Teacher Training College (TIC)

assistance through consultancies; and

. f. provision of consumables necessary for quality training for the duration of the project. Construction and completion of facility with 560 bed capacity.

Staff training: • three (3) staff trained to PhD level • nine (9) staff trained to Masters level

(all had returned to the institution by the time of feR preparation).

New TIC constructed at Machinga in Liwonde with enrolment of 605 students ( 151 girls); 19 residential staff recruited to facilitate instruction and all provided with accommodation facilities at the college.

Civil works of Machinga Teacher Training College (TTC) started in 2007 and completed in 2010 November. The stock of infrastructure erected included the following: a. teaching facilities - 1 large lecture

theatre of 160 person capacity, 2 medium size lecture rooms of 80 persons capacity, 12 classrooms, 3 instructional laboratories (1 for languages, 1 for home economics and I for science), I library, 2 workshops (metal and word works) and a computer laboratory stocked with 65 desktop computers;

b. an administration block with staff offices to enable execution of administrative and technical functions by responsible personnel (managers and fuculty);

c. welfare facilities including a recreation centre, 1 mUltipurpose hall with an elevated performance platform, a modem kitchen installed with electric

27

None. The facility was functional by project closure. MoEST pledged to provide the few remaining equipment in the FYI 1112.

The component contributes to the objective of increasing qualified teachers in primary schools. Going by the new 1 +l teacher training modality, the implication is approximately 600 additional qualified teachers will be supplied from this institution every year. With adequate provisions of the wage bill, their deployment would then contribute to improvements in the pupil to qualified teacher ratio for primary schools.

Subcomponent J

Staff and Teacher Development

Staff Development at Primary Teacher Training Colleges; Distance Education,; Pilot strategies for strengthening entry level capacity of student teachers; and Teaching learning

and firewood pans and requisite facilities;

d. residential facilities for students constituted by 20 hostels (IO male and 10 female);

e. residential facilities for staff consisting of 18 and 5 houses for teaching and non-teaching staff respectively;

f. equipment and furniture including 5 laptops for staff, together with furniture (2400 plastic chairs and other appropriate furniture for the laboratories, offices and dining room);

g. 2 vehicles (l bus and 1 double cabin pickup) to facilitate travel.

With support from GTZ 17, the PTe will also be supported with telephone and internet service installations to ease communication and access to updated information by staff and students.

Not supported by the Project due to financial constraints.

Gaps remain. However, some donors like USAID supporting distance education programs for primary teachers

17 As reported by the Principal of the College. The support was reported to be a one off and recurrent costs are expected to be borne from the operational costs ofthe college.

28

Subcomponent :l Student assessment survey undertaken

Subcomponent 1 Four national government secondary schools refurbished.

using locally available materials for primary teachers (T ALULAR) Baseline and one round of student assessment surveys completed for standards 3 and 6.

The baseline Primary Achievement Survey (PASS) conducted for grades 3, 5, and 7 based on a representative sample of 320 schools and a total 19,200 learners. Another round that was planned to initiate the process of progress measurement was not undertaken due to shortage of funds. The activity will however, be continued under the new FTI project.

I Component 2: Quality Improvements and Inputs

The planned round after the baseline was not done but exercise already mainstreamed in sector operations

a. civil works In Blantyre: 6 out of 8 hostels refurbished Blatyre: 2 hostels not including and fitted with beds and wardrobes refurbished. Physical sciences refurbishment of increasing enrolment from 480 to 600; and chemistry laboratory, and classrooms, kitchen fitted with 4 electric cooking pots; classrooms not done too. kitchen and dining the dining room was refurbished and hall, dormitories; furnished (30 large tables and 180 chairs), Dedza: 6 hostels not fitted

b. laboratories, 1 classroom block (4 classrooms) with beds and lockers; no ablution areas, refurbished and furnished (480 desks and chairs for the laboratory. some teachers' 480 chairs). houses; with special attention to installing security measures;

c. furniture and equipment;

d. teaching and learning materials;

e. textbooks and reference materials for the school library.

However, fittings and installations for the physical sciences and chemistry labs were removed at the start of works and never re~ installed which rendered the two rooms non-functional. The school has only 1 lab in use for the 600 students.

In Dedza: all 14 classrooms refurbished and furnished (500 student desks with chairs), biology lab renovated and furnished with tables but no lab chairs, dining was renovated and furnished (loo

29

Mzuzu: hostel lOot refurbished.

Lilongwe: 2 hostels not fitted with beds and lockers.

ALL: textbooks and reference materials for school libraries; all ablution blocks need refixing to enable utilization.

Availability of a learning outcomes measurement system is the first step towards improvements in learning outcomes. The survey therefore, provides benchmark data against· which future learning outcomes will be assessed to establish progress in learning achievement for primary education.

Refurbishment of school infrastructure contributed to the enhancement of learning environments in the four national secondary schools; with an expectation that this will translate into improvements in learning outcomes at that level.

Improved learning environments also contribute to positive behavioral transformation of students and teachers, which are also

. central to effective learning.

Subcomponent 2: Provision of reference materials to new teachers of CDSS

desks and 600 chairs), kitchen constructed and fitted with 4 electric pots, all hostels repainted but bed fittings done for 2/8, 2 ablution blocks, office equipment provided - fax machine, photocopier, printer, welding machine.

In Mzuzu: 7/8 hostels renovated and fitted with beds, kitchen constructed and fitted with electric stoves, dining room renovated, 900 desks and chairs provided, metal and woodwork hand tools provided.

In Lilongwe: All the 6 hostels were repainted, 4/6 fitted with beds and lockable facilities; library block constructed; furniture included 400 desks and chairs, 320 dining tables, 8 teachers' tables, and 30 library chairs; 2 electric and firewood pans provided; office equipment provided; home economics lab fitted with a fudge and cooker; basic laboratory equipment and chemicals provided; mUlti-purpose hall refurbished and a stage fitted.

Provide textbooks I Not done. and teachers guides for about 250 graduating secondary teachers over the proje~t ~liod.

Component 3: Mitigating Externalities Affecting the Quality of Education

It was agreed that books will be provided to schools not teachers. Funds did not allow.

School Health Implementation of the • The pilot National School Health I None. and Nutrition School Health and and Nutrition Program Package (SHNP) Plan developed Nutrition Program im~emented between 2007-2009. This

30

The strategic plan sets a clear set of priorities in school health and nutrition against

and services package delivered to schools.

Development of the National School Health and Nutrition Strategic Plan 2009-2018.

involved provision of the following drugs to school children: Albendanzole for deworming; Praziquantal for Bilhazia; Vitamin A supplements - Rentinol; Folic Acid and Iron tablets; Paracetamol; and Fansidar. For efficiency and effective targeting, iron tablets were provided to children under 10 years while Praziquantal was only provided to children in Bilharzias prone areas - lake shores. • Implementation materials were developed. (implementation manuals 18 and Fact Sheet 19), training provided to head teachers and parents, and quality assurance provided by the Health Surveillance Assistants (HSAs). • Media campaign undertaken at the

start of project implementation. • The School Health and Nutrition

(SHN) baseline survey which was conducted in 2008.

• The development of the National School Health and Nutrition Strategic Plan 2009.2018 20 informed by the baseline survey.

18 Project Implementation Manual for the School Health and Nutrition (SHN) Component - ESSUP 1

19 Facts about the School Health and Nutrition Program in Malawi.

which stakeholders' efforts are rallied. Effective implementation of the package and the strategic plan also contributes to enhanced school effectiveness.

The pilot was a spring board for the following: revamping of the School Health and Nutrition department of the Ministry through filling of established positions since 2008; integration of the SHN program in the NESP, with more partners expressing interest to revive its implementation including WHO and GTZ in addition to UNICEF.

20 The design of the SHNP was infonned by a baseline study. The National School Health and Nutrition Baseline Survey report. April 2007 Ministry of Education and Vocational Training, Ministry of Health and the National Statistical Office (2007);

31

Componen!4: Direct Support to Schools (DSS) Direct support to schools (DSS)

The expected outputs for this component include: a. technical assistance to the design of information and campaign materials; b. technical assistance towards coordination of the implementation of the DSS; c. printing and distributing information materials; d. staff training at all levels; e. multi-media campaign; f. disbursement of grants per primary school and district offices twice a year (average ofUS$200 per school); and g. undertaking an independent impact evaluation of the program. Clear implementation modalities including roles of various players at the central, district, division and school levels were all well articulated.

• School grant for teaching-learning I None. materials provided to 100% public primary schools reaching 98% of learners. Provision was initiated in 2007/08 with an equivalent ofUS$200 per school. Amendments were made to the allocation formula and an adjustment for enrolment embraced. Schools were clustered into 5 enrolment brackets based on which funds were allocated. In 2009/08, the allocation formula was further adjusted in consultation with DFID. This led to the introduction of: (a) a minor maintenance and rehabilitation fund; and (b) discretionary funds or schools. Direct disbursement to schools was also introduced then, which necessitated schools to open accounts with the National Malawi Savings Bank. This brought an end to the funds disbursement to schools through the National Local Government Finance Committee (NLGFC) and the OEM.

• The administrative grant for the DEM and SMCs was provided to all administrative units in all districts and all schools. A total worth of US$5 per school was aggregated at the DEM level. The changes in the 2009/l0 FY doubled the allocation to US$l {) per school aggregated at the DEM level. For schools, the administrative grant was originally US$lO per school but

32

This component enabled the strengthening of management structures at the sub-national and school levels, for improved education service delivery. Active participation of the SMCs and PT As is one of the avenues through which school level management of human and fmancial resources can be enhanced. This is coupled with the increased school inspection that resulted from the provision of grants to the OEM. Provision of learning materials to the needy learners also contributes to improved learning processes, with anticipated gains in learning outcomes.

Subcomponent 5.1. National Education Policy Consolidation

later increased to US$30 with effect from 2009/10 FY.

• An implementation manual was developed supported by training of management teams at the DEM and school levels.

• The modality is mainstreamed in the NESP and identified for support under the Pooled Fund too.

T Component 5: Capacity Bu!lc.ting_anc:lJ>oJi~yJ>~vel()pment To enable the • National Education Sector Plan I None. consolidation of (NESP) 2008-2017 developed. national policy on • National Strategy for Teacher education, a mu1ti- Education (NSTED) developed pronged approach was including the 1 + 1 teacher training adopted including: model, which is an interim measure to a. development of a fast track the supply of qualified

medium long-term teachers which is currently at its 5th

education sector Cohort for the primary teachers with plan; supportive instructional materials,

b. development of a manuals and guides; teacher education • Primary education and curriculum policy and reform rolled out to all primary grades strategy; • Policy for the out-sourcing of non-

c. formulation and academic services for higher education adoption of a institutions developed. language of • University Loan Trust Fund instituted instruction policy; I

d. assisting with the • implementation of the new curriculum for primary education;

e. building c(i~c.~ty

650 Secondary education personnel trained based on revised training modules. Special focus was placed on those working in CDSS.

33

The development of strategic plans and policies contributed to the enhancement of the institutional capacity of the education system to deliver quality education services.

The NESP led the foundation for the education sector SWAp in Malawi.

The new teacher training model enabled increased generation of qualified teachers.

and developing financial management, reporting and procurement procedures for a wider SWAp based on expanded pooling arrangements;

f. preparing operational plans for the outsourcing of hostels and catering services at the universities and other activities as required;

g. training of secondary school managers.

Subcomponent a) Preparation of • Capacity building plan for education Training and institutional 5.2. Support to a training and officers developed. strengthening for DEMs not the capacity • Education Officers trained on the DSS only for the DSS but entire implementation building plan. modality. education management. of the b} Training of decentralizatio District n policy in Education education. Officers.

c) Technical assistance and institutional strengthening . of districts .

34

Annex 3. Economic and Financial Analysis

The project sought to improve the conditions and quality of teaching and learning at school level, together with the capacity of the system to deliver education services at all levels. Investments were expected to yield benefits through increased number of qualified teachers, strengthened management of human and financial resources, enhanced conditions for school effectiveness that would change teacher and learner behavior and thereby influence learning outcomes. Due to data limitations, the analysis below is only limited to qualified teachers. Sustainability implications and a financial analysis are also presented.

Increasing the number of qualified teachers. The economic model at appraisal estimated that reaching, the desired PqTR of 65:1 by 2010 and 60:1 by 2012 would need government to recruit 5000 teachers per year of which 3000 would be making up for attrition. However, the bUdgetary provisions could only cater for 4000 leaving a net of only 1000 which is not sufficient to move the PqTR to desirable levels. Nevertheless, a multi,.pronged approach was adopted in effort to generate the required stock of qualified teachers. Primary teacher production technology was refonned through reduced years of pre· service teacher training from 2 to 1, introduction of distance learning in-service teacher training programs, and expansion of training colleges targeting underserved areas for equity purposes. This yielded 9.8 percent increase in number of qualified teachers (from 38,841 to 43,065) between 2006 and 2010. The economic model for the project estimated that Malawi would need 54,000 teachers by 2012 to maintain the PqTR at 60:1. Going by the number trained by 2010, this implies that Malawi is only 10,935 qualified teachers away from the 2012 target, which may no longer hold in light of the increasing rather than decreasing PqTR.

Relating the number of teachers trained over the four year period (4,224) to the actual demand of at least 4000 teachers per year points to the need for government to increase the number of qualified teachers and also make budgetary provisions that allow for the absorption of all qualified teachers in the school system. Teacher motivation is also vital to reduce attrition levels currently estimated at about 4.3 percent also needs to be explored for greater efficiencies. In addition, the observed declining pass rates at Standard 8 also raise concern and cost reductions in teacher quality should not be undertaken at the expense of quality teaching-learning transactions. Hence, the implementation of the distance learning in~service program through which complementary training and technical support to teachers is provided needs closer monitoring and provision of all support materials for the realization of intended benefits. Impact evaluation studies need to be undertaken too to establish the impact of the new model to learning outcomes.

Trained secondary school teachers were expected to be increased through the expansion of training facilities at the universities but these were not yet operational by project close. However, the introduction of the non-residential stream of admission to public universities increased the university enrolment significantly (57.7 percent in Mzuzu, 37.5

35

percent in Malawi Polytechnic and 35.6 percent in Chancellor College by 2008); hence contributing to the secondary education teacher stream and hence the availability of trained secondary education teachers in the system. Nevertheless, all colleges visited at the time of the ICR mission indicated a need for further expansion of instructional facilities and increasing university staffing levels for quality instruction practices at the higher education levels.

The case for qualified teachers was justified at project preparation based on a linear regression model for 55 low income countries which concluded that when the pupil-to­teacher ratio improves by one point, the primary completion rate also improves by a similar margin21 • A similar regression analysis based on the 33 African countries yielded however, lower elasticity of -0.6,' indicating a lower responsiveness in these countries. The expected improvements in primary completion rate were expected to yield a socio­economic benefit of about US$ '200 million. Recurrent cost increments would also take into account the cost saving to the education system because of expected lower repetition rates estimated at about US$2 million per year. Linking this to Malawi by project close, the PqTR had improved from 100:1 in 2004 to 88:1 in 2010. However, the primary completion rate had declined from about 65 percent in 2000 to 59 percent in 2009 which is inconsistent with the findings and the expected socio-economic benefits. By 2007, the internal efficiency coefficient at the primary level remained very low (35 percent) which implies that 65 percent of public resources are used for repeated years or for school years of students who are dropping out before completing the cycle22 (theoretically, it takes 23 years to produce a primary graduate instead of 8 years), and may not have improved significantly by project close. The same source indicated that internal efficiency at the secondary education level was slightly better with a coefficient of 66 implying that 34 percent of the resources are currently used for repeated years or for school years of students who drop out before cycle completion (theoretically it takes 6 years to produce a secondary education graduate instead of the four years). Internal efficiency is thus a key issue 'that needs to be further improved is the economic gains of education investments are to be realized in Malawi.

Sustainability implications. One of the key project results was the development of the National Education Sector Plan (NESP) supported by a prioritized education sector plan, which also catalyzed the formation of the Education sector SWAp in Malawi. This also resulted in the establishment of a credible, transparent and predictable budget process which brings together all government and development partners' resources for education over the medium term. All reforms supported under the project are well integrated in the NESP and resource implications for implementation of strategic plans for teacher

21 The World Bank (2003); Achieving Universal Primary Education 2015. A Chance for Every Child.

22 The World Bank (2010); The Education System in Malawi. World Bank Working Paper No. 182

36

education and school health are also prioritized and articulated in the investment plan and hence ensures their continuity. The introduction of a pooled funding modality further affinns to this. Maintenance of the infrastructure facilities will be ensured through operational budget allocations to higher education institutions, while for the national secondary schools, the newly launched policy that allows schools to retain a portion of fees paid by the learners will enable regular maintenance of the refurbished facilities for quality learning. The continuity of the DSS will further enhance the strengthened school management structures for primary schools while the direct disbursement to schools not only ensures timely resource allocations but also improves efficiency. Support to quality expansion of university colleges and national secondary schools will however, need more resources to further the project gains on this front.

The PASS strategy is also integrated in the NESP and will be one of the SWAp undertakings every other year consistent with the agreed assessment cycle of every other year. Lessons learning from other countries with established systems similar to the PASS are however, necessary for further insights on institutional mechanisms that will enable sustainability of this initiative.

Financial analysis. The financial analysis indicates that the project disbursed 99.78 percent of the Grant. Going by component expenditure, the table indicates that half of the resources were spent on component 1 - teacher capacity development and the bulk of this was spent on civil works. The rest of the components shared the other half of the project costs. The approved re-allocation of project costs generated the percentage differences in costs as opposed to what had been planned at project appraisal.

3.9 105.4 12.1

4: Direct Support to Schools - 3.9 105.4 12.1 DSS

5: Capacity Building and 1.4 1.54 110.00 4.8 Policy Development

6: Project Implementation 4.9 3.33 67.96 10.4 Unit and Contingencies

37

-anllinal .... form~I\'Reviml-- MUll

38

60

50

40

30

20

10 o

% distribution of project resources by component,

Annex 4. Bank Lending and Implementation Support/Supervision Processes

, Fenwick M. Chitalu !Financial Management Specialist

i Rae Galloway lSr. Nutrition Specialist \

, AFTPC :Procurement Jw'~~" "' .. ,,,"."~ 'r "_.~_. __ "" "''''"~ "~ .. __ ".,

AFTFM iFinancial :management

i AFTHi-!H~~lth-~d - HIS iNutrition

,

i~~~~~Xi.~g~......... .. [s.~~j?!:f~~~~~~~~f ~~~~~~(~~""""':I~tt~~]~~()~~~ment" ..... , j Pauline Mbombe Kayuni !E T Temporary i AF~ i ' ~. ,-" .• ~" W'",,'." ,- ._,".-.-,'_ '''_~" .-.,.~.,-.,..-_"_.,, -, .>'.",,_. _.",_.-, <_ ,,~ •• , .. ,'" ._,,", .. ~ " •• " _" "N __ ,~. ,,',~ "'~""~',~'~w~,_," ,~, .. """, •• ,.,._" ,~,-,_""~_,, "',"~',_"A"". _.~ - ,~_·A~,. "~, .••• ' ••• ,, , .. "".~ ~ ~"'"' r "~--''''''.-.'-'' H"", _ ••.••• '1--"' '~.M""· •• ____ ._-' , ~"'-"~~'"--""~' ." ~"--"-~'!

! Rest Barnabas Lasway [Sr. Education Specialist : P A9SS ; !-- "" ~, .• ,~ _ ,"~~'''_'_"' ,~. __ T ... ~,,_,,· ... ,,""_"~"" __ '''""'''' __ "",_o,,~~,~~., .. ~ .. ,,~. _ ~_. '''-~""l' • ___ . ,_ ".,~~, _._ . 'e',·_, .. _" ....... ~ .• , · ••. __ ·._e ..... ~ ~ .. ,_'" ,. "' ". __ .". ,."~'"'~_.~ •• _.~ •• _._" ..... '.""_" _-e .. ",,~ yU" ....... ~, _~_ ... _ •. ~ •.. _',""' __ '~" ~"._,., ._~ ~"'" "'" .. '" '~, -" ._, ..... _""._ ~~ ._ .~~»,_"

: Mafalda Sofia Madeira lE T Consultant i EASPR i iN unes Duarte I I i !Mich~eiN~MambO k:~ol1suit~l1t"l AFTErii ....................... .............................. w{

• Steliaj7io~aSekoMan.dalCo~sultant . . . .. .. . ................ ................. ... "';AFTED; .,' .~" ,~" ,_.,."'_~ """.. • ..... ,~:_ •• _'"'''H'''''~H •. ,'._.' _.n."--\ ... _ .. ___ .... .. ~",,,.~".~,,.,, .. ~_ ... -.. ~~-" ,-,.,,~, " ... ~~'

iHuman Development Specialist : AFTED iEconomics 'Ana Ruth Menezes ······!Educatiou·Speclalfst··· .. ···_······· ; AFTED1Education-':

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Steven Maclean Mhone !Procurement Specialist : AFTPC lProcurement ............................................. T ............ · ..... - ............ - .................... - ................. _.............. .. ... - ............. : ............... _..... ........ - ....... _....... . ................... ..

Francis Kanyerere iF"al M t S 'al' t ; AFT' FM :Financial . '.Mk d . : manCI anagemen peCI IS i. a....r t ! an awrre; : !lY1anagemen

Donrud _~~rr~:~~~h~~;~~:;~~_~:agement ..!~~;~~~;;::t : Maggie Mwaisufanana [Team Assistant : AFMM j ~~l1~g~ w

if~~tJ,'i~:~[r3~~~~=~~~~:;~~gr~~;~~tl~~i . ....__ iS~~~l()~.~.~()J~~ ...................................... I~E~§4~~~~~g~~p~~~~li~t...... . ... I~~I§ ..... j..4.11£~~~()~ ..... . Leendert Johannes Sinke iConsultant \ AFTED i jv ~e~i·Ten~aiia· .. · .. ···....1con~~itant"······-· .. ········ "W' ...... _ .... "lAFTED!

:DGertL·~~·dhanUesAiwy~·van~~~~;~~~~~l~~~~geme~~· Spec. ! AFTF~fpM'ina:ncial . t : er me: i i anagemen iR.aisaIllkeriveuaiai~e~······IC~nsuita:nt·· .................................................................... ····························-r ECSHD:················································ ....... .

\ Hori~Yu y ~g . ........... ...........iQp~~~~i~~~9f~~~~ ... .......... "':'Ii!r?~~f?I .......................................................... ,

(b) Staff Time and Cost

39

FY05 FY06 FY07 .......................................... -FY08 ._-•...•...... _.

142.18 ....•..•............................................................... . ; ..•......•....••..•••.•••.....•.......•.••..

121.74 0.00 0.00 0.00 ..........• _ ..... _ .. ,,-._.

263.92

0.00

40

Annex 5. Beneficiary Survey Results (if any)

There is no beneficiary survey results report for the project.

41

Annex 6. Stakeholder Workshop Report and Results (if any)

There is no stakeholder workshop report for the project.

42

Annex 7. Summary of Borrower's ICR and/or Comments on Draft ICR

Recipient's Response to the IeR - 7th April 2011

Ministry of Education, Science and Technology, Private Bag 328,

Capital Hill Lilongwe, Malawi

1.1 Context at Appraisal At appraisal Malawi was rated as one of the poorest countries in the world with an income of approximately US$170 (2003) per capita with a relatively small 2 billion dollar economy within a tight fiscal framework. The country was geographically small with insufficient arable land to allow 11 million people to advance above prevailing poverty levels. The natural resource base is predominantly agriculture; it is mainly concentrated on the export of tobacco and, as such, the country is highly dependent on prevailing international tobacco prices. Further restraints are experienced because of recurrent drought, a high incidence of HIV/AIDS (25% prevalence rate among women) and chronic malnutrition (49%). Concurrently, incomes remain decidedly inequitable with 'more than 70% of the population defined as poor. In the long term,' any possible per capita growth is dependent on increasing the land size of farmers but to achieve this, a high number of 'farmers will have to move out of agriculture. The government will have to improve the quality of education at all levels if it is to develop the industrial and service sectors sufficiently to absorb the increasing number of workers.

Following introduction of Free Primary Education (FPE) in 1994 enrollment in primary increased dramatically from 1.9 million in 1993/94 to 2.9 million the following year. Similarly, enrolment in secondary was substantially expanded as a result of the introduction in 1998 .of Community Day Secondary School (CDSS) However, because both FPE and the establishment of CDSSs were largely unplanned, high number of untrained primary and secondary teachers were recruited and this has impacted negatively on learning outcomes, retention and completion rates Three major issues that affected education quality in Malawi were identified but neither could be addressed separately only a combined remedial strategy to reduce their negative impact would prove effective. These issues are outlined below

Issue 1 : A high number of untrained teachers; limited capacity of teacher education system; uneven secondary school standards and inequitable deployment of teachers contributing to a decline and low student retention;

Issue 2 : Weak capacity, combined with centralized service delivery and lack of prioritized strategy; limited fiscal resources, combined with lack of implementation plans or expenditure framework, contributing to inefficient service delivery;

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Issue 3 : Externalities: Parental poverty and limited community involvement. HIV/AIDS and malnutrition contributing to absenteeism and unsatisfactory retention levels.

The Government of Malawi, therefore, requested IDA's assistance to support the Ministry of Education's effort to improve the quality and efficiency of the education sector. Both IDA and government agreed on a series of concrete activities forming the Education Sector Support Project 1 (ESSUP). These activities were financed by a grant provided by IDA for a total value ofUSD 32.2 million.

The project provided key support to strengthening government capacity and some preparatory activities, in order to prepare it for subsequent implementation of the government Policy and Investment Framework (PIF) and the National Strategy for Teacher Education and Development (NSTED).

1.2 Project Design, Objectives and Key Indicators The project was designed with an overall objective to improve education quality by improving the conditions and processes of teaching and learning at the school level, and the capacity for education service delivery across the education system by:

(i) increasing the number of qualified teachers, (ii) improving the capacity and the quality of education service delivery by

fostering community participation and by strengthening the management of human and financial resources at district and primary school levels, and

(iii) improving learning outcomes at all levels by providing enhanced conditions for school effectiveness that will contribute to changes in the behaviors of teachers and students.

The causal effect generated by these interventions would in the long run improve learning outcomes, retention and the completion rate and thus the move towards the MDGs and government's goals. The following four development indicators were applied:

i) Improve the PqTR in Standard 1-8 from 123:1 in 2000 to max. 80:1 by 2010 (67:1 by 2012);

ii) Improve the PqTR in CDSS from 102:1 in 2000 to max. 65:1 by 2010 (58:1 by 2012);

ii) - Deliver effective school health and nutrition intervention to at least 80% of primary school pupils under the age of 10 by 2010;

iv) Provide DSS Grants: (a) within the first quarter of the school calendar year to some primary schools by March 31, 2007; and (b) to at least 2,000 primary schools by 2010.

2. KEY FACTORS AFFECTING IMPLEMENTATION AND OUTCOMES 2.1 Project Preparation, Design and Quality at Entry The project was designed based on extensive sector work (2004 -Country Status Report) and through a collaborative process to address a limited number of strategic areas within the government's policy framework. The task team made consultations with stakeholders,

44

civil society, development partners and education staff within the ministry at different levels in February 2004.

The project development objective design was also relevant to the overall national goal of improving education service delivery. With decline in education quality, there was need to increase the trained teacher output through enhanced teacher trained modes and construction of additional teacher training colleges (TTC). This would significantly reduce the high teacher to pupil ratios.

Due to the system inefficiency in service delivery, a combination and consolidation and packaging of strategies to improve the system's capacity to deliver education were quite appropriate. .

However, implementation of the project was negatively affected due to financial shortfall and lack of capacity to implement. The design of the project was over-ambitiously made without due consideration of the financial resources against national commodity I material pricing trends. There was also an oversight in relation to the available capacity within the ministry and supporting agencies to effectively execute the project.

2.2 Institutional and Implementation Arrangements The main implementation agency was the Ministry of Education on behalf of Malawi government. A project steering committee chaired by the Minister (or deputy minister) was setup to oversee the project implementation and provide overall guidance, particularly on policy related issues. However, this arrangement was short-lived due busy schedule of ministers. The ministry discussed and agreed with the Bank that the Principal Secretary for Education should chair steering committee meetings. This arrangement proved much useful as it led into holding such meetings regularly and as planned. It ensured that the overall objective of the project was met and facilitated the resolution of problems arising during implementation.

A technical committee23 chaired by Director of Education Planning was also set up to review implementation of the various components and subcomponents to facilitate resolution of any practical problems that arose during project execution. It comprised of all component managers, representatives of institutions executing the project components and subcomponents and EDMU.

Component managers were appointed to manage and monitor implementation of respective components.

Under the DSS component, distribution of funds at the school level was undertaken through the District Education Managers' offices within the Local Assemblies. Execution of the component was carried out at the district and school levels and it included the

23 Previously chaired by Principal Secretary (PAD P 16 para. 4) but changes were made following changes in Steering Committee meeting chairmanship.

45

school committees. A manual to guide implementation was developed and school committees trained on the same. SHN component was implemented through manuals, campaigns and other routine activities at primary schools developed in collaboration by MoEST, MoH, NOOs and development partners such as UNICEF, OTZ and WHO

The project also strengthened partnership through collaborative implementation. For example DflD was actively involved in DSS while UNICEF, NOOs and MoH were active in the implementation of SHN. OTZ on the other hand supported teacher education.

A comprehensive mid-tenn review was jointly conducted in November 2007 by government and the World Bank, development partners and stakeholders. The review team reassessed the project design and' the project's original objectives, and their relevance in the light of any circumstances and likelihood of achieving them. The review also assessed progress on project components, fiduciary and safeguards compliance and legal covenants.

Although there were implementation positive aspects the project was faced with setbacks. Some of the most notable ones are outlined below:

Delays in recruitment of specialist staff at EDMU: EDMU was the implementing unit on behalf of MoEST, as such, there was need to recruit specialist staff at the very time the project started in 2005. But the specialist staff came in 2007. This had significant impact on the implementation and successful completion of the project.

Delays in architectural designs: Since specialist staff at EDMU came late and architectural designs were not available, it was clear that implementation, particularly of civil works, was going to delay. This was further compounded by the fact that vetting of the designs by the Bank was done through a consultant resident in Europe. This arrangement significantly contributed to the delays experienced in civil works. It was not a surprise therefore that civil works commenced in 2008.

Conflict between MoEST and EDMU: misunderstanding between the two sides for about a year and half affected implementation significantly. The major reason for the conflict was that EDMU particularly the specialist staff did not fully understand administrative structural design. The ministry was of the view that EDMU Director was supposed to report to Director of Education Planning or in his absence to Secretary for Education rather than going directly to the Bank. Delays in resolving such stand-off resulted in delays in making key decisions related to implementation.

Staff turnover at MoEST as well as EDMU: This eroded personnel with experience to support effective implementation.

Delays in decision making : throughout implementation period there has been a general observation that decision - making would take too long possibly due to a complex bureaucratic structure that exist in government systems ..

46

Poor information flow: there was generally poor communication and information flow within and between MoEST and EDMU, This resulted in poor or low participation by stakeholders and beneficiaries.

Contractors and Consultants: there were certain contracts that delayed either because of poor relationship between contractors and their consultants or simply being uncooperative. Delays were also attributed to over trading on contractors and consultants which exceed their capacity.

2.3 Monitoring and Evaluation (M&E) design, Implementation and Utilization Monitoring and evaluation was done through the development objectives indicators and key performance indicators that were developed.

• Routine monitoring • Monitoring of works

• FMRs • Mid term review

2.4 Post-Completion Operation Completion of outstanding civil works: due to.ESSUPl reduction in scope there are huge gaps that have to be filled. The provision of new IDA fmancial assistance of US$50 million under pool fund is likely to be utilized in the completion ofESSUPI to full scope

Institutionalization of DSS and SHN: DSS initiated and supported by ESSUPI has been institutionalized. The ministry has established SHN department with key positions filled. SHN department has taken onboard all activities under ESSUP 1.

Another key post completion operation is the development and implementation ofNESP: ESSUPI supported the development of NESP. NESP was key to the establishment of SWAp in education. Implementation plans have been developed under Education Sector Implementation Plan (ESIP).

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3. ASSESSMENT OF OUTCOMES 3.1 Project Outcomes The project was designed with four primary objectives a) to improve education quality by improving the conditions and processes of teaching and learning at the school level, b) improving the capacity and the quality of education service delivery by fostering community participation and by strengthening the management of human and financial resources at district and primary school levels; c) to improve learning outcomes at all levels by providing enhanced conditions for school effectiveness; and d) development and consolidation of policies as basis for formulation of SWAp

Increase number of trained teachers has resulted in improved PqTR (123:1 in 2000 to 91:1 in 201O).With the new TTC and the integrated teacher training modes under ESSUPI it is expected to have the PqTR in primary school reduced further down. The rehabilitation of the four national government secondary schools improved the learning conditions. Training of school managers on good practices of school improvement has

. contributed to general performance of most secondary schools. There has also been improvement in secondary school PTR. Universities have also doubled their enrolment.

ESSUPI enhanced community and wider participation in the delivery of education service. For example districts, schools and communities actively took part in the implementation of DSS which is one the most successfully executed component under ESSUPI. The project also brought the meaning of decentralization and devolution to communities through training, campaigns and awareness actions.

Establishment of learning outcomes has been difficult to determine because there were no set indicators.

Several policies such as NSTED for teacher education and development, outsourcing of non-core services in public universities, retention of fees in secondary school for infrastructure maintenance among others, were developed which resulted in the development of the NESP whose eventual outcome is formulation of sector wide program.

3.2 Achievement of Project Components (Summarized) Component 1: Teacher Capacity Development This component mostly targeted public tertiary education institutions with teacher education and training inclination. The component was executed in two subcomponents outlined below: Infrastructure development: the project was to construct for Polytechnic, Mzuzu University, Chancellor College and construction of a new primary teacher training college in order to improve enrolment of student teachers. Due to reduction in scope of work most of the activities planned earlier were dropped especially in university colleges.

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Human resource development: the project also provided scholarships for teacher trainers in the three public university colleges. A total of 28 lecturers have been trained from faculties of education. .

Student Assessment Survey: a baseline primary assessment sample survey (PASS) was successful conducted using standardized tests in English and Mathematics for standards 3,5 and 7. Data was collected from 10,067 pupils and 2040 teachers from 320 schools in 32 education districts in the county. The survey was conducted in order to assess learning outcomes and other factors both at school and home affecting learning. The study was conducted by a country teams comprising the following institutions: centre for education research and training at chancellor college, Malawi National Examinations Board, Malawi Institute of education, National statistical office and the Ministry of education, science and Technology. This was done to strengthen the capacity developing national achievement tests in the country

Assessment Results of civil works at these colleges have been varied. For example, Chancellor College and Machinga TIC are rated satisfactory while Mzuzu University is rated moderately satisfactory and Polytechnic is unsatisfactory. Staff training in all the three college is highly satisfactory. Implementation of the student assessment survey is rated satisfactory. '

Component 2: Quality Improvements and Inputs This component was designed to improve the conditions of learning in the four national government secondary schools through rehabilitation and refurbishment and also the provision of additional textbooks for graduating CDSS teachers.

The four national government secondary schools were rehabilitated, refurbished and supplied with learning material. Although more investment is required but in relation to what was planned to be done the four school learning conditions improved. Graduating teachers at Domasi College of Education for CDSSs were provided with additional text books for to their teaching.

Assessment Rehabilitation and refurbishment of the four national government secondary schools is rated moderately satisfactory while the provision of textbooks to graduating CDSS teachers is rated satisfactory. The schools were also provided with furniture and office equipment.

Component 3: Mitigating Externalities Affecting the Quality of Education This component was to provide a school health and nutrition package to all public primary schools, which included a) distribution of vitamin A and iron- folic acid to school children under 10 years old, b) de-worming; c) treatment of malaria and fever and d) promoting of good health and nutrition practices.

49

With the support of UNICEF, the project procured drugs such as Fansidar for the treatment of malaria albendazole for deworming, , Praziquantal for bilharzias, Vitamin A supplements and Paracentamols for body pains. Praziquantal was administered to children in bilharzias prone areas such as lake shore. A detailed manual was developed and adequate training provided to those that would be administering drugs. "

Assessment SHN was one of the most successfully executed the component and is rated satisfactory. The component had covered over 90% of the primary school pupils and had significantly reduced the incidence of bilharzias in infected pupils in prone regions. The component was instrumental in the establishment of SHN department in the MoEST and influencing the development of SHN policy and strategic plan.

Component 4: Dired Support to Primary Sehools (DSS) The component was to supply basic learning materials through provision of grants directly to primary schools while strengthening the participation of communities in school management. Two types of grants were provided per school a) school grants for teaching and learning material and b) administrative grants to DEMs

Provision of school grants started in 2007 during which about 500 schools received an equivalent of US$200 each for the purchase of non-textbook teaching and learning materials. The funds were transferred into the school's respective District Assembly's account. However, in the subsequent year the criterion for allocation of grants was change from school to enrolment but clustered into five categories. Further, adjustments were made to the formula after DfID agreed to co-finance DSS as ESSUPI experienced. budget shortfall. The grant then included maintenance and rehabilitation fund and discretionary funds for schools.

Administrative grant was meant for DEMs and School Management Committees to support their administrative cost in the management of school grants. The fund was also meant to support the decentralization policy. The grant was aggregated from the US$5 for each schooL Thus, the total for the DEM was dependent on the number of schools available in the district. The grant has over the years been revised to US$30 per school.

Assessment This component is rated satisfactory. The component since 2007 had disbursed grants to 5200 schools more than the targeted number of schools. The implementation of the component was well executed.DSS prepared manuals, trained various groups such as· school management committees, PEAs headteachers. The component also mounted awareness campaigns through radios, brochures. Provision of grants promoted community ownership and participation in school management and improvement.DSS has since been institutionalized into MoEST and its activities have been incorporated into ministry's PoWs.

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Component 5: Capacity Building and Policy Consolidation This component was designed to support the ministry in a) national education policy consolidation b) capacity building and c) implementation of government decentralization policy in education.

At implementation the component have achieved all targeted policies that were to be developed. For, instance, NESP was developed through a consultative process. National Strategy for Teacher Education and Development (NSTED) was also developed to guide improvement and development in the teacher education subsector. The policy was also developed through a consultative process involving development partners, government institutions with stakes in teacher education and other stakeholder. Other policies include a) teacher distribution formula to guide the deployment of teachers in primary education; b) resettlement policy for the new TTC; c) rehabilitation and maintenance of school infrastructure in CDSS and secondary schools; d) Outsourcing of non-core functions in public universities including student financing and recovery mechanism; e) National Strategy for Community Participation in Primary Schools (NSCPPS).

Under capacity building goal the component finance several trainings at different levels and areas. Implementation of government decentralization policy in education goal was not done and the associated funds were reallocated to other areas of need during reprogramming.

Assessment The component is rated satisfactory. This component was probably the most complex and required more attention. The component fulfilled the legal obligation by successful conclusion of the dated covenants though not in the specified dates. The component was central in filling in policy gaps the derailed establishment of sector wide program through development and consolidation of critical policies.

Component 6 : Project Implementation Unit and Coordination The component provided support to the implementation through recruitment of key staff such as Project Director, engineers, fmancial management and procurement specialists, quantity surveyors and other specialist staff. The project team assisted in speeding the execution of the project particularly in civil works, SHN and DSS components. The component performance is rate satisfactory.

4. ASSESSMENT OF BANK AND RECIPIENT PERFORMANCE

4.1 Bank Performance The Bank performance was highly satisfactory. The Bank assisted MoEST in attainment of set targets. For instance, conclusion of date covenants, preparation of resettlement policy for the new TTC at Liwonde, frequent reminders to MoEST on issue that required actions; timely granting of NO, timely funds disbursement and the friendliness of the Bank staff on the provision of assistance and guidance.

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4.2 Recipient Performance The performance of the recipient has been moderately satisfactory. The recipient encountered several challenges during implementation. Most important of all was staff turnover. Key staff was regularly changed at MoEST thereby affecting smooth implementation as each new staff had to be oriented. There were observed inefficiencies in decision making even of on issues requiring urgent attention.

5. Lessons Learned Implementation should not be entirely left into the hands of contract staff because it create gaps when they leave for better employment; Project development should not be influenced by ambitions by sector needs and resources available; Actions and decisions that are likely to affect implementation should be done promptly; There is need to develop staff turn-over mitigation measures; If there are any disputes they should be resolved very quickly; Project completion and closure dates should be different; Bid evaluation and selection: The choice of lowest bidder compromises quality of. services; Key project staff needed to be identified before implementation commenced;

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Annex 8. Comments of Cofinanciers and other Partners/Stakeholders

No comments have been provided.

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Annex 9. List of Supporting Documents

Ministry of Education, Science and Technology; The Evaluation of the Direct Support to Schools (DSS) Programme Phase 1. December 2008.

Ministry of Education and Vocational Training (2007); Manual on the Implementation of Direct Support to Primary Schools (D8S). First printed in 2006 and later revised in April 2007

Project Implementation Manual for the School Health and Nutrition (SHN) Component - ESSUP 1. October 2006

National School Health and Nutrition Strategic Plan. School Health and Nutrition Response in the Education Sector. 2009-2018. Ministry of Science and Technology. Lilongwe

Ministry of Economic Planning and Development (September 2009). 2008 Public Expenditure Tracking Survey. Education and Health Sectors.

Ministry of Education, Science and Technology; The Evaluation of the Direct Support to Schools (DSS) Programme Phase 1. December 2008.

Project Appraisal Document (PAD) for the Project to Improve Education Quality in Malawi (PIEQM). May 21,2010

Project Appraisal Document (PAD) for the Education Sector Support Project 1 (ESSUPl). March 31, 2005.

Ministry of Education Science and Technology (2008); Guidelines for the Retention and Use of Tuition and Boarding Fees at School Levelfor Public Secondary Schools. 2008

Ministry of Education Science and Technology (2008); National Education Sector Plan (NE8P) 2008·2017.

Ministry of Education (2009); A guide to Infrastructure Maintenance and Rehabilitation in Public Secondary Schools. Version 1 2009.

Ministry of Education and Vocational Training, Ministry of Health and the National Statistical Office (2007); The National School Health and Nutrition Baseline Survey report. April 2007

AI-Sammarrai Samer and Hassan Zaman (2002); the, Changing Distribution of Public Education Expenditure in Malawi. IDS Sussex University and World Bank; which greatly informed the decisions around development of a costed and prioritized ESSP and the need for Government to divest from some areas within higher education.

Gorgens, M. (2002); Baseline study for the Secondary Education Project (SEP) which enabled identification of gaps in secondary education provision and the need to refurbish the national secondary schools.

Quality Assessment of Lending Portfolio (QALP-I) report.

The World Bank (2004); Malawi Education Country Status Report: Cost, financing and school effectiveness in Malawi - a future of limited choices and endless opportunities. Africa Region Human Development Working Paper No. 78.

54

The World Bank (2004); Strategic Framework for Assistance to Africa. IDA and the Emerging Partnership Model. The Africa Region.

The World Bank (2005); Education Sector Strategy Update; Achieving Education For All, Broadening our Perspectives, Maximizing our Effectiveness.

\

The World Bank (2003) Malawi Country Assistance Strategy. Memorandum of the President. The World Bank (2007) Malawi Country Assistance Strategy.

55

SapitwaSapitwa(3,002 m)(3,002 m)

NykiaNykia(2,606 m)(2,606 m)

Vip

hya

M

tns.

RUMPHIRUMPHI

SALIMASALIMAMCHINJIMCHINJI

L ILONGWELILONGWE DEDZADEDZA

MWANZAMWANZA

MULANJEMULANJE

MACHINGAMACHINGA

DOWADOWA

BLANTYREBLANTYRE

ZOMBAZOMBA

M A N G O C H IM A N G O C H I

THYOLOTHYOLO

NTCHISINTCHISI

K A S U N G UK A S U N G U

MZIMBAMZIMBA

CHIRADZULUCHIRADZULU

CHITIPACHITIPAKARONGAKARONGA

NKHATANKHATABAYBAY

NKHOTAKOTANKHOTAKOTA

NTCHEUNTCHEU

CHIKWAWACHIKWAWA

NSANJENSANJE

ChitipaChitipa

RumphiRumphi

MchinjiMchinjiSalimaSalima

DedzaDedza

NtcheuNtcheu

MangochiMangochi

MachingaMachinga

ZombaZomba

ChikwawaChikwawa

ThyoloThyolo

MulanjeMulanje

MwanzaMwanza

DowaDowa

KasunguKasungu

MzimbaMzimba

ChiradzuluChiradzulu

NtchisiNtchisi

LirangweLirangwe

N’gabuN’gabu

BalakaBalaka

NkhungaNkhunga

LuwawaLuwawa

ChintecheChinteche

ChisengaChisenga

KatumbeKatumbe

ChelindaChelinda

KafukuleKafukule

EuthiniEuthini

KalulumaKaluluma

NamiteteNamitete

BlantyreBlantyre

MzuzuMzuzu

LILONGWELILONGWE

Bua

PHALOMBEPHALOMBE

PhalombePhalombe

NORTHERNNORTHERN

C E N T R A LC E N T R A L

S O U T H E R NS O U T H E R N

Z A M B I AZ A M B I A

M O Z A M B I Q U EM O Z A M B I Q U E

M O Z A M B I Q U EM O Z A M B I Q U E

TANZANIATANZANIA

NsanjeNsanje

Lirangwe

N’gabu

Balaka

MonkeyBay

Makanjila

Nkhunga

Luwawa

Chinteche

Chilumba

Chisenga

Ruarwe

Mkondowe

LivingstoniaKatumbe

Chelinda

Kafukule

Euthini

Kaluluma

Namitete

Chitipa

Karonga

Rumphi

MchinjiSalima

Dedza

Ntcheu

Mangochi

Machinga

Zomba

Chikwawa

Nsanje

Thyolo

Mulanje

PhalombeMwanza

Dowa

NkhataBay

KasunguNkhotakota

Mzimba

Chiradzulu

Ntchisi

Blantyre

Mzuzu

LILONGWE

RUMPHI

SALIMAMCHINJI

L ILONGWE DEDZA

MWANZA

MULANJE

PHALOMBE

MACHINGA

DOWA

BLANTYRE

ZOMBA

M A N G O C H I

THYOLO

NTCHISI

K A S U N G U

MZIMBA

CHIRADZULU

CHITIPAKARONGA

NKHATABAY

NKHOTAKOTA

NTCHEU

CHIKWAWA

NSANJE

NORTHERN

C E N T R A L

S O U T H E R N

Z A M B I A

M O Z A M B I Q U E

(MALAWI)

M O Z A M B I Q U E

TANZANIA

Bua

Songwe

LakeChilwa

Shire

Lake Malaw

i

To Muyombe

To Muyombe

To Lundazi

To Chipata

To Furancungo

To Ulongwe

To Tete

To Morire

To Liciro

To Vila de Sena

To Cuamba

To Cuamba

To Mbeya

To Tunduma

Vip

hya

M

tns.

Sapitwa(3,002 m)

Nykia(2,606 m)

36°E

34°E 36°E

32°E

32°E

10°S

12°S

14°S

12°S

14°S

16°S 16°S

10°S

MALAWI

This map was produced by the Map Design Unit of The World Bank. The boundaries, colors, denominations and any other informationshown on this map do not imply, on the part of The World BankGroup, any judgment on the legal status of any territory, or anyendorsement or acceptance of such boundaries.

0 20 6040 80

0 20 40 60 Miles

100 Kilometers

IBRD 33440

NOVEMBER 2004

MALAWISELECTED CITIES AND TOWNS

DISTRICT CAPITALS

REGION CAPITALS

NATIONAL CAPITAL

RIVERS

MAIN ROADS

RAILROADS

DISTRICT BOUNDARIES

REGION BOUNDARIES

INTERNATIONAL BOUNDARIES