World Bank Document...IMPLEMENTATION COMPLETION REPORT LESOTHO EDUCATION SECTOR DEVELOPMENT PROJECT (ESDP I) (CREDIT No. 2287-LSO) PREFACE This is the Implementation Completion Report

Document ofThe World Bank

FOR OFFICIAL USE ONLY

Report No: 20063

IMPLEMENTATION COMPLETION REPORT

LESOTHO

EDUCATION SECTOR DEVELOPMENT PROJECT

[Credit No. 2287-LSO]

January 28, 2000

Human Development Group 1Eastern and Southern AfricaAfrica Region

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not otherwise be disclosed without WorldBank authorization.

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CURRENCY EQUIVALENTS

Currency Unit = Lesotho MalotiAppraisal: US$1 =M2.56 Closing: US$1 =M6.24

WEIGHTS AND MEASURESMetric System

FISCAL YEAR OF BORROWERApril I -March 31

ABBREVIATIONS AND ACRONYMS

COSC Cambridge Overseas School CertificateDCA Development Credit AgreementDRT District Resource TutorDRC District Resource CentreECOL Examinations Council of LesothoEFU Education Facilities UnitEO Education OfficerEU European UnionFPE Free Primary EducationGOL Government of LesothoIDA International Development AssociationJCE Junior Certificate ExaminationLIET Lesotho In-Service Education for TeachersLP Lerotholi PolytechnicM&E Monitoring and EvaluationMOE Ministry of EducationNCDC National Curriculum Development CentreNTTC National Teacher Training CollegeNUL National University of LesothoPSLE Primary School Leaving ExamPTC Primary Teachers Certificate ExamSAR Staff Appraisal ReportSEC Schools Examination CouncilTA Technical AssistanceTSC Teaching Service CommissionTVD Technical and Vocational DivisionTVE Technical and Vocational EducationUBLS University of Botswana, Lesotho, and SwazilandUNDP United Nations Development ProgrammeUNICEF United Nations Children's Education FundUSAID United States Agency for International Development

Vice President: Callisto E. MadavoCountry Director: Pamela Cox

Sector Manager: Ruth Kagia/Dzingai MutumbukaTask Team Leader: Trish Tierney

FOR OFFICIAL USE ONLYTABLE OF CONTENTS

PREFACE

EVALUATION SUMMARY ............................................... i

PART I: PROJECT IMPLEMENTATION ASSESSMENT ................................................ 1

Introduction and Background ....... 1..................................... Project Objectives ............................................ 1Achievement of Project Objectives ............................................ 3Project Implementation Experience and Results ......................... ................... 4Major Factors Affecting the Project ............................................ 9Bank Performance ............................................ 9Borrower Performance ............................................ 10Assessment of Outcome ............................................ 10Project Sustainability and Future Operation ............................................ 10Key Lessons Learned ............................................ 11

PART II: STATISTICAL ANNEXES ............................................... 12

Table t: Summary Of Assessments .12Table 2: Related Bank Credits .13Table 3: Project Timetable .14Table 4: Credit Disbursements, Estimated and Actual .15Table 5: Key Indicators Of Project Implementation .16Table 6: Key Indicators for Project Operation.. 21Table 7: Studies Conducted Under Project .23Table 8A: Project Costs ............................................ 24Table 8B: Project Financing ............................................ 25Table 9: Status of Legal Covenants ............................................ 26Table 10: Compliance with Operational Manual Statements ................................ 30Table 11: Bank Resources - Staff Inputs ................ ............................ 31Table 12: Bank Resources: Missions ............................................ 32

APPENDICESAppendix A: Completion Mission's Aide MemoireAppendix B: Borrower's Evaluation Report

MAP

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

IMPLEMENTATION COMPLETION REPORTLESOTHO

EDUCATION SECTOR DEVELOPMENT PROJECT (ESDP I)(CREDIT No. 2287-LSO)

PREFACE

This is the Implementation Completion Report (ICR) for the Education SectorDevelopment Project (ESDP I) in Lesotho, for which Cr. 2287 in the amount of SDR 18.9million (US$25.2 million equivalent at the prevailing exchange rate) was approved on July 19,1991, and made effective on February 26, 1992.

The credit closed on June 30, 1999, after three extensions. The credit disbursed 99%,leaving a balance of approximately SDR 730,000 which was canceled in September, 1999.

The ICR was prepared by Wes Snyder (Consultant, University of Montana) and TrishTierney (Operations Officer, AFTH1), with contributions and support from Lori Geurts (TeamAssistant). It was reviewed by Pamela Cox (Country Director for Lesotho) and DzingaiMutumbuka (Sector Manager, AFTH1).

This report was prepared following an ICR mission in November, 1999, comprising TrishTiemey (Team Leader) and Wes Snyder (Consultant). The ICR is based on informationcollected during that mission and on material from the project files.

The Borrower participated in the preparation of the ICR by contributing to andcommenting on the Statistical Annexes, and by preparing a separate Completion Report (seeAppendix B). In addition, the Borrower provide detailed comments on the draft ICR.

EVALUATION SUMMARY

Lesotho Education Sector Development Project(Cr. 2287-LSO)

Introduction

1. Since becoming involved in Lesotho's education sector in 1974, the World Bank hasprovided Lesotho US$56.7 million, including US$25.2 million under the Education SectorDevelopment Project (ESDP I). The funding, provided under five different projects, helpeddevelopment of the education sector keep pace with population growth by expanding enrollmentsat the primary level, improved the quality of primary and secondary education, upgradedvocational training facilities and established programs for non-formal education. The fifthproject, ESDP I, undertook a broad approach to sectoral reform in line with the Government ofLesotho's (GOL) Fifth Five-Year Plan.

Project Objectives and Description

2. The Bank and the Government of Lesotho have consistently demonstrated strongcommitrnent to human development in Lesotho. ESDP I brought together various developmentpartners to provide financial and policy assistance in support of the reforms outlined by GOL.The reform program focused on: (a) increasing the quality, efficiency, and relevance ofeducation programs, especially primary education; (b) addressing key management, financingand resource allocation, and staffing issues which constrained overall sectoral performance; and(c) increasing efficiency through better resource utilization.

3. These objectives were set to address critical needs in the areas of basic education, such asexpanding access through the construction and furnishing of new classrooms. In order toenhance the quality of education, the project aimed to revise curricula, develop instructionalmaterials, and strengthen the system of assessment. In addition to recruiting more teachers,training for teachers at both pre- and in-service was planned to upgrade the standards ofteaching. To address the needs of students enrolled in Technical and Vocational Educationprograms, the project proposed to introduce standardized craft curricula, strengthen skillscertification and testing, and improve policy and management capacity within the sub-sector.The project planned to support the National University of Lesotho in its efforts to introducequality enhancement and cost containment measures. Finally, the objectives included improvingsectoral management by reorganizing the MOE, promoting decentralization and enhancingschool-level management.

Implementation Experience and Results

4. Project Implementation -Procurement. Procurement began slowly, due to understaffingand ineffective organization. In addition, the Bank revised its procurement guidelines after theDCA was signed, and this caused some confusion. In response to these problems, MOEreorganized the EFU and hired a procurement agent to provide technical assistance and trainEFU staff. Through concerted, combined effort by MOE and the Bank, EFU capacity was

Evaluation Summary ii

significantly strengthened throughout the project. Procurement of goods, in particular, improvedover the last few years of the project.

5. Project Implementation -Financial Management. Financial management presentedproblems throughout the project, mostly stemming from weak capacity and perpetualunderstaffing. There were consistent difficulties with maintaining up-to-date records, althoughinternal controls were generally adequate and responsibilities were logically allocated. TheAccounts Section made important progress and entered into ESDP II a much stronger and morecapable unit.

6. Basic Education. This component was satisfactorily implemented and, overall, achievedits objectives. Under the project, the MOE exceeded expectations for civil works by building1,094 new classrooms, 241 offices, 2,200 latrines and renovating 49 classrooms. Despiteinitially weak capacity for procurement of goods, all associated furniture was provided for newclassrooms and over half of existing classrooms were furnished. Ten District Resource Centers(DRCs) were constructed, furnished and made operational.

7. The project also provided significant quality inputs. The National CurriculumDevelopment Centre (NCDC) reviewed and revised the entire primary curriculum, trial-testedthe materials, evaluated their effectiveness and trained teachers in their use. Full implementationof the new curriculum will be achieved in 2001. The curriculum for junior secondary school hasbeen reviewed and revised and is being tested. The project improved the organizationalinfrastructure supporting examinations. The Primary School Leaving Exam (PSLE) is nowunder management and supervision of a newly formed unit, the Examinations Council ofLesotho (ECOL). ECOL received a renovated building, expanded staff and new management.The administration component of PSLE and JCE still require strengthening and ECOL willreceive support through a twinning arrangement under ESDP II.

8. National Teacher Training College. NTTC improved its infrastructure under ESDP I.More faculty have been trained and the college initiated new programs to improve teachereducation. Graduate numbers increased but the expanded numbers did not meet expectations.This was largely due to the withdrawal of USAID funds during its Africa-wide reduction offunding support. The renovation of student hostels under ESDP II should allow NTTC to meetits original goal of expanded enrollment capacity. Significant improvements were made inprogramming by upgrading pre- and in-service training.

9. During the plan period, 1,400 primary school teachers were hired and over 70% of theseallocated to Standards 1 to 3. This has resulted in a lower pupil:teacher ratio of 47:1 at theprimary level. As the GOL implements Free Primary Education beginning with Standard One inJanuary 2000, ESDP II activities aimed at supporting development of additional teachers willplay a critical role in maintaining these improvements.

10. Technical & Vocational Education. This component only partially achieved theexpected results. The Technical and Vocational Department (TVD) experienced severeproblems of understaffing, a high level of dependency on technical assistance and a lack ofstrong leadership in the area of policy development. Most of the agreed studies were carried out

Evaluation Summary iii

but with limited impact. Evening classes were introduced at only one of the 12 technical andvocational schools expected. A review of the TVE Act did not produce any results due toinactivity of the TVE Board and weak institutional capacity. A key achievement of this periodwas the passage of the Lerotholi Polytechnic (LP) Act, granting LP autonomy. In addition, sixcraft curricula were standardized and are currently used in 8 institutions.

11. National University of Lesotho. Achievements under this component were negligible.The cost containment study was completed but, to date, a limited number of recommendationshave been implemented and those few have not improved the efficiency of the university as itsbudget continues to grow. The library was computerized and books provided. The unit systemwas revised and NUL now uses a modified subject system. However, this system isimplemented only to a varying degree across departments and it is not clear that anyimprovements in student outcomes have eventuated as a result. After many delays, the projectmade significant improvements in NUL's capacity for science research and instruction. Itremains to be seen whether NUL will properly maintain the science laboratories and equipmentprovided under the project.

12. Sectoral Management. During the project, MOE made significant improvements in thisarea. The MOE completed a reorganization process and improved its monitoring and evaluationcapacity. Understaffing remains a concern in several departments. The Education Act of 1995provides the legal framework for establishing a partnership between parents, proprietors and theGOL through Advisory School Committees (ACS). The enactment of the law was severelydelayed by disagreements over the composition of the ASC representation. The subsequentestablishment of over 800 ASCs has positively impacted parental participation in educationservices. The establishment of 10 District Resource Centers (DRCs) further strengthened thedevolution of educational operations to the districts and schools. The District Resource Teachers(DRTs) provide essential support to rural schools.

13. Bank Performance. Bank performance in project preparation, identification and appraisalwas satisfactory, while its performance during supervision was highly satisfactory. Throughperiods of political unrest and changes in political leadership, the Bank provided consistentadvice and support which helped enable the MOE to keep the project on track. Consultation wasvalued and openly practiced by all parties. The Bank team demonstrated a strong understandingof issues on the ground and greatly improved donor coordination.

14. Borrower Performance. The Borrower's overall performance was satisfactory, andhighly satisfactory during project preparation. Activities in the MOE tend to center on eventsrather than a continuous process toward common objectives and goals. However, departmentalleadership has improved significantly under the reorganized structure of MOE. Understaffmg,especially at the Planning Unit, accounts for much of the capacity problems. The failure to meetsome conditionalities delayed the release of USAID funds and eventually resulted in the loss ofthe last tranche from USAID. The Bank's conditions of disbursement were met and some werechanged as per a feasibility study. The MOE, especially the Planning Unit, worked consistentlywith the Bank to ensure progress.

Evaluation Summary iv

Future Operations and Sustainability

15. The project has built a good foundation for educational improvements by modernizingmany schools, as well as the instructional program. Because Lesotho's economic fortunes haveimproved with the income from the Lesotho Highlands Water Project and the legal frameworksfor education and the consulting mechanisms are in place, the gains should be sustainable. Thefuture operations of the Ministry rely heavily on the implications of Free Primary Education(FPE), which will be implemented gradually beginning in January 2000. The ongoing project,ESDP II, will provide consistent and valuable support that will help ensure improvements in thesector are maintained and built upon.

Lessons Learned

16. The implementation of ESDP I has demonstrated the advantages and disadvantages ofdonor coordination. While working with several donors provides needed leverage and support, italso requires persistent consultation and good planning, particular with regard to changes infinancing. Another lesson presented here is that without adequate leadership in a department orsub-sector, investment will ultimately have little/no impact. Investments are better focused onareas with strong leadership and vision. Clear procurement regulations are critical to smoothimplementation progress, and advice from the Bank must be consistent. It is difficult to have apositive impact on implementation capacity without support from the Government in terms ofstaffing key positions.

Project Implementation Assessment 1

PART I: PROJECT IMPLEMENTATION ASSESSMENT

Introduction and Background

1. Human resource development faces many challenges in the renewed democracy ofLesotho. Lesotho is landlocked, has severely limited natural resources, and remains heavilyreliant, economically, on South Africa. Over the last decade, the country has suffered politicaldisturbances, differences in political leadership, police strikes, and continuing shortages inresources and personnel. The context of the Education Sector Development Project (ESDP I) ismarked by the successful retention of a democratic government despite many attempts to derailthe process, re-examination by Lesotho of its role within the SADC region and emergence fromaid dependency to economic independence attributed to revenues accrued from the LesothoHighlands Water Project.' Stresses on the education system have included teachers' strikes,complex negotiations with various stakeholders, financial limitations, and changes in educationalmanagement. Out of these opportunities and difficulties have arisen many accomplishments inthe arena of human resource development and vastly improved physical facilities that provide abetter foundation for strengthening Lesotho's education sector.

2. The guiding vision in education has been the GOL's Fifth Five-Year Plan. Despite manydiversions and ambiguities in recent times, this sectoral reform plan has provided direction to theactivities, organizational changes, and policies in education. ESDP I provided financing andpolicy development support to the reforms. Governments of Lesotho have consistentlyrecognized the importance of human resource development, and ESDP I has kept attention on thecentral elements of this goal. The project arose within the context of the fifth development plan,and it reflects the extensive consultations, in-depth analyses, and broad organizational andfinancial reviews. The consultative process included the macroeconomic dialogues betweenGovernment, the IMF, and the Bank, that went into the derivation of sectoral emphases. Theproject was developed in order to address perceived needs in curriculum development, teachertraining, technical and vocational education and training, basic education, university educationand sectoral management.

3. Two significant risks were recognized from the outset: the political context and the extentof support for education that might emerge from the uncertain fiscal climate. Politics haveloomed over implementation of project activities, but increased educational budgetaryallocations have received consistent support.

Project Objectives

4. The Education Sector Development Project (1991/92 to 1995/96, extended to 1999)brought Bank and other donor resources together to facilitate implementation of Lesotho'sreform program focusing on:

Increasing the quality, efficiency, and relevance of educational programs, especially primaryeducation;

Country Assistance Strategy, January, 1996.


* Addressing key management, financing and resource allocation, and staffing issues whichconstrain overall sectoral performance; and

* Increasing efficiency through better resource utilization

5. ESDP I was a comprehensive sector approach to the development of realistic investmentstrategies to address structural issues in sectoral management and quality and efficiency issues inschooling implementation. The Bank has been the coordinating partner for donors andinvestments during this plan period. Project management personnel in the Bank and the PlanningUnit, MOE have remained consistent, cohesive, and focused on project outcomes rather thanlocal insufficiencies. As a leading investor, the Bank's resources have provided continuity to theinvestment package and have seen the project through its ups and downs as the prospects for thesociety in general have varied. Continuity overrode the uncertainties of an emerging democracy.

6. The specific project objectives were to:

Basic Education* Construct new primary school classrooms and sanitary facilities3 Furnish new and existing classrooms at primary level* Develop new curriculum and instructional materials for basic education* Improve the system of assessment* Recruit additional teachers, especially in lower primary* Provide increased professional support for teachers* Improve efficiency in student flow

National Teacher Training College* Strengthen teacher education and training institutional capacity* Facilitate expansion of teacher output• Upgrade standards

Technical and Vocational Education* Introduce standardization of craft curricula* Strengthen skills certification and testing* Improve policy studies in technical and vocational education

National University of Lesotho* Introduce quality enhancement and cost containment at the university

Sectoral Management* Assist in reorganizing the central Ministry of Education (MOE)* Promote and support decentralization* Enhance school-level management* Improve monitoring and evaluation for sectoral management

7. In the initial planning for ESDP I, cooperation was secured from IDA, EU, and USAID.Many donors ultimately took part in various aspects of project initiatives. Development partners


included IDA, African Development Bank, European Union, Irish Aid, GTZ, USAID, UNDP,UNICEF, UNCDF, World Food Program, Save the Children, and the Bernard van LeerFoundation. Total investment came to approximately M260 million (approximately US$ 43million). The three largest partners were IDA, EU and USAID.

8. Evaluation of Project Objectives. The scope and number of project objectives, touchingall major areas of the sector, indicate the complexity of the project. These project objectives wereclear and in line with the GOL strategy as per the Fifth Five-Year Plan. Previous projects hadaddressed sectoral needs in a more narrowly-focused, fragmented manner. During identificationand appraisal, the Bank team and the GOL agreed that it would be appropriate to undertake amore broad, sectoral approach. Despite capacity problems, which often stemmed fromunderstaffing, the objectives were generally appropriate and the achievement of objectivesoverall has been achieved.

Achievement of Project Objectives

9. Overall, the project objectives were met. The extent of accomplishment variedconsiderably across sub-sectors, and the details in Table 5 depict uneven development in thesector. This is not surprising given the dissimilar constraints and varying capacities across sub-sectors. The detailed achievements, by component, are discussed in the following section. Insummary, the achievements of the components are rated as follows: Basic Education -Substantial; Teacher Training - Substantial; TVE - Partial; NUL - Negligible; SectoralManagement - Substantial.

10. The Basic Education component exceeded expectations for civil works by building 826new primary school classrooms (versus 510 planned classrooms) and providing latrines, officesand furniture. The MOE reviewed and implemented a revised primary school curriculum andlocalized examinations. The targeted number of 1,300 additional teachers were hired and 70%allocated to Standards 1-3 in order to enhance quality. Efficiency improvements resulting fromESDP I include a lower repetition rate and fewer under- and over-age school entrants. Theproject strengthened teacher support by holding in-service workshops and hiring 70 DistrictResource Teachers. Capacity at the National Teacher Training College (NTTC) was improvedthrough construction of 12 new student hostels, computerization of the library, construction of anew administration block and overseas fellowships for 13 lecturers. Under the TVE component,a key accomplishment was the passage of the LP Act which granted LP autonomy. Six craftcurricula were standardized and implemented at 8 institutions and some evening courses wereintroduced, although a lower number than planned. The review of the TVE Act did not result inhoped for revisions and, in general, leadership and vision for policy development in TVEremained weak throughout implementation of this component. The NUL conducted a cost-containment study but implemented only a limited number of the recommendations, having littlepositive impact on budget management and resource utilization. The NUL library wascomputerized and received books, and a science wing was built and equipped. The finalcomponent, Sectoral Management, achieved a successful reorganization of MOE. Ten DistrictResource Centers were built and are in use. The GOL passed the Education Act in 1995, and thishas greatly enhanced community participation in the delivery of education.


Project Implementation Experience and Results

11. Implementation of several components began slowly, partially due to weak capacity inMOE and worsened by the difficulty MOE experienced in filling key positions. Strongcommitment by MOE and Bank project staff overcame financial management and procurementproblems, and the project was implemented in a satisfactory manner. The IDA credit wasextended three times, ultimately providing MOE two additional years for implementation.Extensions were granted based on several factors, including that the project became effective oneyear after gaining approval by the Board. When the EU provided additional grant funds notincluded in the original financing plan, the Bank appropriately fulfilled its role as lender of lastresort. This created a significant disbursement lag. Disagreement between GOL and churcheswith regard to the Education Act caused delays in the initial years of the project, as diddifficulties arising from problems MOE faced in meeting the USAID conditionalities. Thepolitical disturbances in September, 1998, again disrupted implementation and led to the finalextension. All in all, the extensions were justified, and the resource flows provided a continuityof direction for the education system during these difficult times. The accomplishments wereachieved incrementally, and many resulted late in the extension period. Project success wouldhave looked very different if the credit extensions were not granted.

12. Project Implementation - Procurement. Procurement began slowly, burdened byunderstaffing and ineffective organization. The procurement arrangement within EFU wasinitially too segmented and structured around unclear lines of responsibility. Additionalconfusion with regard to procurement came from unclear guidelines as to the application of DCAprovisions versus national laws of Lesotho. The GOL attributed procurement problems tochanges in the Bank's guidelines after the DCA was signed and high staff turnover of Bankprocurement specialists.2 Despite these minor differences in perspective, both the MOE and theBank worked each problem through, further demonstrating the focused and sustainedmanagement effort that marked this project. Procurement of goods, in particular, improvedduring the last two years of the project. In 1996/97, EFU was re-structured and a procurementagent provided assistance in the procurement of goods and services and trained EFU staff. Adetailed review of the procurement situation in early 1999 noted the successful training of EFUstaff, and recommended that EFU no longer needs an agent doing the work for them. Occasionalshort-term technical assistance should suffice.

13. Project Implementation - Financial Management. Financial management problemspersisted throughout the project. The Accounts Section of MOE was perpetually understaffedand had difficulty in attracting professionals with the appropriate qualifications. However, theAccounts Section of MOE did make progress throughout the project period. A FinancialManagement Specialist from the Bank conducted a review during the third year of the projectand found the internal controls adequate and staff responsibilities appropriately divided. Thereview also noted that the Accounts Section ensured Planning Unit decisions complied withWorld Bank procurement procedures. However, there were consistent problems with keepingthe accounting records up to date, and also with the practice of the Auditor General's officepreparing the accounts as well as conducting the audit. The MOE implemented severalrecommendations from the Specialist's report and these issues are also gaining support under

2 Borrowers Perspective on Implementation Completion Report, ESDP, July, 1999. See attachments.


ESDP II. A professional Financial Manager has been hired, along with staff in several lowertier positions. The Accounts Section has computerized its accounting system and developed adetailed Financial Procedures Manual.

14. Financing. The European Union, USAID and IDA provided the majority of financing forESDP I, with the three coordinating fairly well with the MOE. However, a set of problems didemerge from the long list of conditionalities associated with the grant agreement with USAID.These conditionalities were extensive, rigidly applied, and were treated as legal statements thatwere difficult to further negotiate. The failure to meet some of the conditionalities severelydelayed the second tranche of money from USAID and jeopardized project financing. Continuedproblems in meeting the USAID conditionalities eventually resulted in loss of the last tranche offunds. USAID/Lesotho lost its efforts to keep the funds in the finance restructuring of USAIDacross the world. Fortunately, the European Union filled some of the gap, and USAID'sRegional Office has provided funds for limited activities. The Bank's additional conditions ofdisbursement were met, and some were changed as a result of feasibility studies conductedduring the project. As the Borrower's Completion Report points out, the GOL met all itsfinancial obligations to the project. The GOL's readiness and compliance to these conditionscontributed significantly to the success of the project.

15. Capacity in MOE. Despite the interrelationships of problems in Lesotho, the MOE tendsto be fragmented in its responses (e.g., each individual department or center operates fairlyindependently). Attempts at integration of activities and products are vested in weak committeestructures that yield representation but not meaningful collaboration or coordination. Theintegration of project activities related to these objectives rested in the Planning Unit. ThePlanning Unit probed, prodded, and encouraged the various units to carry out their particularresponsibilities, and kept them on task and timely to the extent possible. Curriculum, exams, andteacher education management stabilized during the plan period and that improved projectpotential. However, the Planning Unit was still the integrating group for the MOE. Fortunately,Planning has had consistently good leadership, even though it is vastly understaffed. Clearly, thisunit merits more assistance within the establishment of the organization and the assignment ofpersonnel. They have used their personnel efficiently and kept this complex project on track. Oneof the hallmarks of this project has been the cooperative relationship between the Planning Unitand the Bank project personnel, and the good relationship fostered good communicationthroughout the sector.

16. Basic Education. Implementation of this component was satisfactory. Improvements areclearly evident within the basic education program, specifically in the following sub-components.

17. Civil Works. Many schools benefited from the receipt of improved and new facilities.The Borrower's Report notes that implementation of civil works was initially delayed due to theslow pace at which the Ministries of Works and of Finance granted a waiver to MOE toimplement the civil works component through the Education Facilities Unit (EFU). Accordingto MOE, this problem was mainly due to the existing financial regulations that have not beenamended since independence to accommodate emerging developments. There were also delaysin signing contracts, by relevant authorities, after contracts had been awarded and in approvingrequisitions, orders and processing payments.


18. The EFU was initially overwhelmed by the number of GOL, IDA, European Union, andAfDB civil works projects. The MOE created the position of an EFU coordinator, not originallyplanned for, which led to duplicity of direction. In 1997, MOE re-organized EFU which is nowfunctioning very well. Overall, the procurement of civil works proceeded well, and in time,accomplishments exceeded planned targets. These accomplishments were afforded by additionalfunds from the EU, and were all the more remarkable because the project overcame a setbackafter the USAID pullout that left a $13 million gap in project funding that included civil works.The idea of renovating existing classrooms was abandoned after EFU realized most lacked soundfoundations and renovations would prove more costly than building new classrooms. Of theclassroom shells built, communities completed just over half, suggesting that it may beunrealistic in poverty-stricken areas to expect that level of community contribution.

19. Curriculum and Assessment. The National Curriculum Development Centre (NCDC)provided continuous leadership to the reform program as it reviewed and revised the entireprimary curriculum, trialed the materials, evaluated their effectiveness, and trained teachers intheir use. The design and content of subject syllabi were improved in all subjects, and fullimplementation of the new curriculum will be achieved in 2001. The Teachers' Guide for thePrimary Syllabus 1-3 was produced for schools in 1998. Useful programs, including radioinstruction for English and Sesotho and a quarterly Sesotho supplementary reader for Standards1-3, called Mahlaseli, were continued and improved.

20. At the other end of basic education, the junior secondary curriculum in 14 subjects is nowbeing tested in trial schools. The form of supporting materials for teachers will differ acrosssubjects. Based on the fine work carried out in the primary curriculum, ESDP I funding wasextended to cover these revisions at the junior secondary level. Syllabi for most junior secondarysubjects have been revised and streamlined in varying degrees. Implementation will begin in2000 with the core subjects of English, Sesotho, Maths, and two optional subjects (BusinessEducation and Typewriting). Some supporting materials, such as teachers' guides, manuals orhandbooks, have been produced and are in trial schools. This work has proceeded systematicallyand steadily. There is confidence that this part of the ESDP I effort is sustainable under NCDC.

21. The project improved the organizational infrastructure supporting examinations bybringing the system under the management of the Examinations Council of Lesotho (ECOL).ECOL was provided a renovated building, expanded its personnel, and was put under newmanagement. Responsibility for the Primary School Leaving Exam (PSLE) was transferred toECOL, thus bringing primary education under local control. The Junior Certificate Exam (JCE)was localized through the University of Botswana, Lesotho, and Swaziland (UBLS) SchoolsExaminations Council (SEC), headquartered in Lesotho. It was anticipated that the SEC wouldlocalize the COSC as well, but the demise of regional cooperation left Lesotho on its own. Theadministration of the PSLE and JCE still require strengthening. Further improvements await thedevelopment of technical competence within ECOL to develop and analyze their items andexams and carry out the needed research to improve the examination program, planned underESDP II.

22. Teacher Recruitment. The new Teaching Service Commission (TSC) was established toimprove the allocation of teachers, limiting the school proprietors' responsibility in the hiringand assigning of teachers. With the new legal and regulatory framework, TSC should be able to


ensure deployment based on real need. One of the clear benefits of ESDP I was theregularization of grants to schools to hire teachers. The system is more efficient; the incentive toexaggerate school statistics is now lower; and system confidence, higher. Recruitment ofteachers was successful during the first couple years of project implementation, then the pool ofqualified teachers was exhausted. Grants continued but were used to hire uncertified teachers.These teachers were assigned to upper level grades and qualified teachers re-deployed toStandards 1-3. The substantial increase of teachers in the system has resulted in lowerpupil:teacher ratio.

23. National Teacher Training College. This component was implemented satisfactorily.More teachers were hired, and more qualified teachers were placed in the lower standards.Teacher education now inhabits better facilities and has many more trained faculty and newprograms that purport to improve teacher education. NTTC gained autonomy, which constituteda major accomplishment for the project. Implementation of the autonomy has been slow, but isnow planned for April 2000. Physical facilities have been improved by the addition of theadministration block funded by Irish Aid, and the project provided extensive support to thelibrary, its automation and security. The inputs of ESDP I were absorbed usefully by NTTC inbringing its facilities up to a reasonable standard. Funding was not sufficient to bring about thelevel of output hoped for, and therefore, ESDP I enabled improvements in quality at NTTC butnot significant expansion. It remains for ESDP II to ensure this expansion. MOE has becomemore familiar with the benefits of distance education and plans to utilize this medium ofinstruction to improve teacher's qualification.

24. Graduate numbers from NTTC, in 1996, increased to 385 in the Lesotho In-serviceEducation for Teachers (LIET-PTC) and 96 Primary Teacher's Certificate (PTC) III graduates.Planned increases in enrollment had anticipated expansion to approximately 1,100 entrants andlarger graduating classes. The main obstacle was the withdrawal of funds anticipated from theUSAID program, which did not materialize when USAID reduced its program across Africa andparticularly in Lesotho. With the renovation of hostels planned under ESDP II, enrollments canincrease to the criterion size. On the programming side, the LIET program was upgraded in 1993to equivalency to the PTC. The Pre-service PTC was upgraded to a Diploma program with 101and 185 new entrants in 1998 and 1999 respectively. An In-service Division was established tomeet the differential requirements of pre-service and in-service training.

25. Technical & Vocational Education. The plans outlined in the SAR anticipateddevelopment in the management and human resources of TVE that did not fully materialize.Implementation and management capacity remained low for most of the project period. Thesupervision reports repeatedly noted over-dependence on technical assistance. The transitionfrom the management of TVE by the Lerotholi Polytechnic to management by the Technical andVocational Division (TVD) has not progressed smoothly. TVD has not exerted leadership in thefield, and the department lacks a clear vision for policy development. The main accomplishmentof this period was the passage of the Lerotholi Polytechnic Act of 1997. This guaranteed LP'sautonomy and increased the prospects of developing more attractive conditions of service forprofessional personnel. However, it means that TVD must take over the coordination of TVEactivities in the country, and it is not certain that TVD is ready for that undertaking. A review ofthe TVE Act was conducted in 1992, but the report did not lead to action because of theinactivity of the Board and the lack of institutional capacity of TVD.

Project Imp!ementation Assessment 8

26. Various studies were carried out to examine the needs and opportunities for TVE. Six craftcurricula were standardized, including automotive, bricklaying, carpentry and joinery, electricalinstallation, commercial studies, and home science. These are used in 8 institutions, and eveningcourses were introduced at only one institution (LP) of the twelve planned. The skills'certification/ trade-testing centre was cancelled based on the recommendation of a feasibilitystudy. Funds were reallocated to the provision of new physical facilities; and equipment, toThaba-Tseka Technical Institute and the Leloaleng Trade School. In addition, equipment wasprovided to all vocational schools.

27. National University of Lesotho. Estimates of the interest and extent of participation bythe National University of Lesotho (NUL) were overly optimistic. A large share of the recurrentbudget of the MOE is invested in NUL and for this reason the project sought ways to enhance thequality of university programs while developing cost containment strategies to lower the share offinancial resources used by tertiary education. A study by a British firm made recommendationsfor cost-containment measures. However, NUL implemented only a limited number of thereport's recommendations, and those implemented had a negligible impact on the overall costs ofthe university. In fact, the share of the MOE's recurrent budget allocated for tertiary (mostly toNUL) has doubled since 1990, without commensurate quality improvements.

28. The library was computerized; and books, supplied. NUL implemented a modified courseunit system, but staff were not trained on its use or purpose and confusion continues to reign. Itis not clear that any improvements have eventuated as a result of introducing the modifiedsystem. Significant improvements made in the science facilities and equipment at NUL areimpressive. However, the expanded capacity for science research and study will have littleimpact if NUL does not allocate sufficient budget for maintenance and supplies. Twenty NULstaff members went for degrees at the Masters level or above.

29. Sectoral Management. The reorganization of the central MOE was completed. Thisresulted in significant improvements by creating a more efficient and well-structured workenvironment. Some of the changes included the creation of a second tier of senior staff below thePrincipal Secretary (CEOs); strengthening the Planning Unit by training five planners; andestablishing Field Services supervision. Monitoring and evaluation was boosted by the impactassessments carried out under the auspices of the Planning Unit. However understaffing inseveral departments continues to be of concern.

30. An important turning point for the education sector was the enactment of the EducationAct (No. 10) 1995. Parliament inculcated decentralization as a central democratic theme ineducational management, providing a framework for parents, proprietors, and the Government towork together to improve education at the local, district, and national levels. The Education Actwas delayed for several years, primarily due to disagreements between the MOE and thechurches over the composition of the Advisory School Committees. Since then, great strideshave been made with the establishment, approval and training of approximately 800 AdvisorySchool Cormmittees to date. In the Borrower's Report, MOE recognizes the need for closercooperation and consultation between school proprietors, MOE and parents as this importantwork goes forward.


31. Ten District Resource Centres (DRCs) were built and now serve as the key facility for thedecentralization of educational operations to the districts. The District Resource Teachers(DRTs) continue to successfully assist the rural schools and the cadre of DRTs is growing.Education Officers (EOs) are closer to their schools and have increased opportunities to interactwith other district level agencies.

Major Factors Affecting the Project

32. Throughout the life of the project, the MOE underwent many changes of leadership atvarious levels. Transition between the two Directors of Planning was smooth, and theircombined personal strength and competence helped to override much of change that could havebeen damaging at the political levels above.

33. In addition to the personnel and organizational concerns, there have been major disruptionsexperienced throughout the plan period. Conflicting contingents of the army fired shells over theNTTC, hitting the library at one stage. Police strikes, continued army discontent, teachers'strikes, and civil unrest eventually resulted in the burning of three towns in Lesotho. Twowarehouses full of books for primary students were razed. The transition to democracy remainsfragile, but confidence is growing.

Bank Performance

34. Overall, Bank performance was satisfactory, with supervision rated as highly satisfactory.Identification of the investment areas for ESDP I was tied to the MOE's Fifth Five-Year Plan.The risks were fully realized and did eventuate as problems, but preparation was solid andappropriate. Appraisal followed in June, 1991. By considering lessons learned from previousoperations in Lesotho, the Bank team enhanced the design of the project during appraisal. Forexample, ESDP I committed to integrating the Planning Unit into the daily workings of the MOEin order to improve upon the lack of ownership stemming from a more isolated PIU. Therelationship with the Planning Unit, established during Appraisal and sustained duringimplementation, was solid. Previous projects in Lesotho also noted the strong correlationbetween the quality of a school manager and the level of learning outcomes. This lesson servedas the basis for including school-level management as one of the sub-components of ESDP I.The need to focus on the improvement of teachers' skills, not simply their qualifications,prompted the design of the teacher support sub-component of ESDP I. In retrospect, the hopesfor TVE were unjustified at the time of appraisal. However, the objectives for TVE set by theproject did mirror those of the Government. The expectations of the University were reasonableand measured but they were not realized and largely overwhelmed by other considerations. Theprogramming in the SAR provided direction and impetus for development even when vision wasblurred; and leadership, overly burdened.

35. In supervision, the problems unanticipated at time of appraisal and the new ones created bya changing and disruptive environment were admirably handled. Consultation was valued andopenly practiced by all sides, and the project status reports clearly evidence the difficulties andsuccesses of this mutual management. There was a good understanding of the local problems bythe Bank, and useful communication with Basotho officials on project activities and needs.


Borrower Performance

36. Borrower performance overall was satisfactory, with preparation rated as highlysatisfactory. The MOE's institutional capacity was weak at the start of the project, and despitesome continuing challenges, improvements have been made. The Planning Unit had its handsfull to motivate and organize efforts within departments. Departmental leadership has improvedsignificantly, although the understaffing of the Planning Unit continues to be of serious concern.The problem partly stems from the lack of economic planners available in the local market, aswell as insufficient influence by Planning Unit over staffing decisions made by the Ministries ofPlanning and Finance and Public Service. In order for MOE to effectively implement theplanned program of decentralization, qualified planners at the central and district level will becritical. A decision to have district planners with cross-sectoral responsibilities has not yet beenimplemented. The Planning Unit effectively capitalized on the Bank supervision. Conditions ofcredit effectiveness served as the main vehicle for addressing the issues of school control andissues of sector reform.

Assessment of Outcome

37. The overall outcome of the project was satisfactory, with important positive side effectsresulting from the cooperation of assistance agencies with MOE. ESDP I was an excellent plan,created in cooperation by the Government and three external assistance agencies (EU, IDA andUSAID). It provided a direction to the fits and starts of a beleaguered MOE through difficulttimes. The quality, efficiency and relevancy of education have been improved significantly at thelevel of Basic Education, and to a lesser extent, in TVE and at NUL. The project strengthenedmanagement capacity within the Planning Unit, NCDC, ECOL and NTTC. However, TVE andNUL today face management problems similar to those present at the start of the project.Staffing issues are a problem throughout the sector, as the pool of qualified professionals incountry is rather limited. However, many staff were trained and gained valuable experience thatserved the sector well and contributed to the successful project implementation. Overall, thesystem is more efficient with lower repetition rates, less under- and over-age entrants, and withdecentralized management at the district level. With the passage of the Education Act, increasedinvestment in school facilities, improved curriculum, creation and activation of the TeacherService Division, and the implementation of decentralization features, the influence and controlof Government in the sector has increased drarnatically.

Project Sustainability and Future Operation

38. The project has built a good foundation for further educational improvements. The projecthas modernized many schools, as well as the instructional program. Because Lesotho's economicfortunes have improved with the income from the Lesotho Highlands Water Project, and thelegal frameworks for education and the consulting mechanisms are in place, the gains should besustainable.

39. In addition to addressing some new concerns, ESDP II continues or expands upon supportbegun under ESDP I in several components, classroom construction, school-level management,curriculum and assessment, teacher training and support, policy development in TVE andinstitutional capacity building within the MOE. This will provide a valuable means of support to


ensure that improvements in the sector will be maintained and built upon. The support, bothfinancial and technical, will play a key role as GOL implements its policy of Free PrimaryEducation (FPE), beginning in January, 2000. The introduction of FPE will help Lesotho meetsits commitment to providing Universal Primary Education by 2011.

Key Lessons Learned

40. Future projects may benefit by considering the following lessons:

(a) Cooperation of the external assistance agencies, forged at the time of project conception,provides needed leverage, coordination, and focus to project activities which may bepolitically sensitive. However, coordination and changes in available donor funding cansignificantly impact project implementation.

(b) Normally, the sectoral approach merely assumes the integration of efforts, and therefore, failsto actively forge the linkages needed and is a disappointing strategy despite its theoreticalappeal. In this case, the sectoral approach was effective as it was coupled with continuousmanagement by the Planning Unit and the assistance agencies, particularly the Bank.

(c) Unless personnel and resources are applied to M&E, it will not be a useful contributor in themanagement process and more external resources may have to be expended in order to getthe information needed.

(d) In all cases of accomplishment in ESDP I, there was adequate leadership. Without leadershipthe likelihood of effective use of resources is minimal, and investment is ill advised untilsuch time this lack is addressed.

(e) Investment in inspectorate activities in resource poor environments does not result in closersupervision or inspection. Supportive services (e.g., DRTs) are more effective developmentagents. The supervision of a school should be placed in the hands of competent localmanagement.

(f) Clear procurement regulations and relevant local experience in procurement are essential foran effective procurement process. In addition, the Bank must be consistent in theprocurement advice it provides to Borrowers. The MOF and its line ministries must have aclear understanding as to when DCA procurement provisions apply versus nationalregulations. Clear communication on this matter will help avoid undue delays and confusion.

(g) Government must support key components in the development process, particularly planningand finance. Development efforts are much more difficult without adequate staffing of theseunits.

(h) The supervision process of the Bank must be active and involved. Assisting the Governmentto meet plan objectives entails constant interaction and external consultation. Sometimes anexternal source has access and attention that an internal source cannot create. This helpsmaintain momentum and direction. Mutual concern and consultation is not interference.

Statistical Annexes 12

PART II: STATISTICAL ANNEXES

LESOTHOEDUCATION SECTOR DEVELOPMENT PROJECT

Table 1: Summary Of Assessments

A. Achievement of Obiectives Substantial Partial PXNepgible Not: ~ ~ ~ ~ ~ ~ ~ ~~~______ _____ :: . E Appliabe:XA0

Macro Policies XXSector Policies _XXFinancial Objectives XXInstitutional Development XXPhysical Objectives XXPoverty Reduction XXGender Issues _XXOther Social Objectives XXEnvironmental Objectives XXPublic Sector Management XXPrivate Sector Management _ L XXB. Components: Achievementsof Objective__ _ _ _ _ _ _ _ _ _ _ _

Basic Education XXTeacher Training |XXTechnical & Vocational Education .XXNational University of Lesotho _XXSectoral Management XXC. Project Soaibli Likel nlikloy :_rtain ___ _ _ _ __ _XX__

D. Bank Perfiomance Highly Satisfctoryq Deficient: . : i~~~~~~Satisfctoryt : :00j: : A: :ii:

Identification XXCreparation Assistance XXAppraisal _xSupervision x

Preparation XXImplementation YXX

Covenant Compliance XXOperation XXF. Assessment of Outcome XX

2 Project sustainability depends to a large extent on the stability of Lesotho through the next election and intodemocratic govermment. These factors lie outside the education sector.

Statistical Annexes 1 3


Table 2: Related Bank Credits

Credit Purpose Year of Board StatusApproval/

Loan Amountin US$ MlID.

Past Operations

1. Education Project Expanded/upgraded vocational, 1974 Closed(Cr. 4970) technical, and commercial education; US$ 4.0 March 31, 1979

provided education to out-of-schoolyouth and adults

2. Second Education Project Constructed curriculum development 1977 Closed(Cr. 7480) center and secondary schools, provided US$7.5 Dec. 31, 1982

equipment and vehicles, technicalassistance, and fellowships

3. Third Education Project Improved quality and efficiency in 1981 Closed(Cr. 11480) primary and vocational education US$ 10.0 Sept. 30, 1987

4. Fourth Education Project Reduced overcrowding; increased the 1984 Closed(Cr. 15120) availability of instructional materials, US$ 10.0 Sept. 30, 1991

and upgraded unqualified teachers

Planned Operation

1. Community Development The dual objectives are: (a) to Approved bySupport Project (Social Fund) demonstrate the effectiveness of a RVP 12/20/99

demand-driven approach to supporting US$ 4.7community development through aphased implementation of a multi-sectoral special fund; and (b) tostrengthen Lesotho's capacity to monitorthe scope and trends of poverty in thecountry.

On-going Operations1. Second Education Sector Increase access and equity at the primary 1999Development Project school level in order to lay the US$21.0 Effective(Cr. 3192) foundation for achieving universal

primary education by 2011, and alsoimprove the quality of primary andsecondary education. The project willalso assist in policy formulation andcapacity building in ECD, TVET andNFE.



Table 3: Project Timetable

Step,*in Prct cyle Date Planne Date Attual

Identification July31, 1989Preparation November 26, 1990Appraisal March 1991 March 11, 1991Negotiations May 1991 May 20, 1991Board Presentation July 9, 1991Signing July 19, 1991Effectiveness September 1991 February 26, 1992Changes to the Development CreditAgreement (DCA):

Schedule 1 October 1996

Section 2.03 (closing date) and March 1997 March 1998Schedule 1 & 2Section 2.03 03 (closing date) and March 1998 December 1998Schedule ISection 2.03 03 (closing date) and December 1998 June 1999Schedule I

Mid-Term Review December 16, 1995Project Completion June 30, 1999Loan Closing October 31, 1999



Table 4: Credit Disbursements, Estimated and Actual

SAR Estimates Actual Actual cummul. As% of credit

Yr/Quarter Quarterly Cummul. Quarterly Cummul. Credit(US$ millions) (US$ millions)

FY92 Q3 0.00 0.00 2.08 2.08 8.3%Q4 0.09 0.90 0.09 2.17 8.6%

FY93 Ql 0.30 0.39 0.13 2.30 9.1%Q2 0.40 0.79 0.11 2.41 9.6%Q3 0.80 1.59 0.19 2.60 10.3%Q4 0.90 2.49 0.16 2.76 11.0%

FY94 Ql 0.90 3.39 0.20 2.96 11.7%Q2 0.90 4.29 0.31 3.27 13.0%Q3 1.00 5.29 0.41 3.68 14.6%Q4 1.00 6.29 0.30 3.98 15.8%

FY95 Ql 1.20 7.49 0.23 4.21 16.7%Q2 1.29 8.78 0.03 4.24 16.8%Q3 1.10 9.78 0.64 4.88 19.4%Q4 1.10 10.78 0.13 5.01 19.9%

FY96 Ql 1.10 11.78 0.90 5.91 23.5%Q2 1.10 12.88 0.90 6.81 27.0%Q3 1.20 14.08 0.85 7.66 30.4%Q4 1.29 15.37 0.57 8.23 32.7%

FY97 Ql 1.20 16.57 1.27 9.50 37.7%Q2 1.29 17.86 0.47 9.97 39.6%Q3 1.50 19.36 0.39 10.36 41.1%Q4 1.50 20.86 0.68 11.04 43.8%

FY98 Ql 1.40 22.26 0.41 11.45 45.4%Q2 1.40 23.66 0.34 11.79 46.8%Q3 0.69 24.35 0.75 12.54 49.8%Q4 0.80 25.15 1.37 13.91 55.2%

FY99 Ql 0.00 25.15 3.76 17.67 70.1%Q2 0.00 25.15 2.36 20.03 79.5%Q3 0.00 25.15 1.74 21.77 86.4%Q4 0.00 25.15 3.02 24.79 98.4%

FY00 Ql 0.00 25.15 0.39 25.18 99.9%Q2 0.00 25.15 0.00 25.18 99.9%



Table 5: Key Indicators Of Project Implementation

INDICATORS ESTIMATED AT ACTUAL COMMENTSAPPRAISAL

A. BASIC EDUCATION1. Provide new primary Construct 510 new primary school Completed the construction of 826 new Number of classroom shells reduced

school classrooms with classrooms, 340 new classroom shells, classrooms, 268 new classroom shells, to alleviate hardship on thesanitary facilities. 1,760 units of VIDP latrines, and 2,188 units of VIDP latrines, renovated community. Approximately 60%

rehabilitate 200 classrooms. 49 classrooms, and built 241 new offices now enclosed. Renovation offor headteachers. existing classrooms reduced because

they were uneconomical.

2. Furnish new and existing Furnish 850 new classrooms, shells, and Provided furniture for 1,094 newprimary school 200 renovated classrooms; provide desks classrooms and shells and 49 renovatedclassrooms. for 50% of the students without them. classrooms; provided 98,184 students

with furniture; and furnished 241 offices.

3. Curriculum development Review and revise primary school Revised syllabi and developed materials. Informal reports from the fieldat primary level. curriculum and design accompanying indicate new curriculum is well

materials. received.

4. Produce/disseminate Develop, produce, and distribute pupils' Distributed learning materials to all The Science kits were not formallyinstructional materials at workbooks in core primary subjects; schools and provided 1,050 radios, 3,500 appraised for appropriateness. Theyprimary level. provide 3 vehicles to Supply Unit; book lockers, 1,200 science kits, were issued without a manual, and

provide Primary Science Kits; provide 210,000 newspapers, and the Science Panel is now developingreplacement radios for Radio Language 5 vehicles, one. Evaluation report on radioArts Program. programs mostly positive.

5. Curriculum development Revise and streamline junior secondary Syllabi for most junior secondary Paramount significance attached toat secondaiy level. syllabi for all subjects. subjects were revised and streamlined in the revision of JC before COSC.

varying degrees.6. Produce/disseminate Produce supportive materials for teachers Some supportive materials for teachers Teachers' Guides under

instructional materials at based on new syllabi. on new syllabi have been produced and development. Continuing review ofsecondary level. disseminated to trial schools. existing materials.



7. Improve system of Establish single, local institutional point All examinations are now under the Institutional development of ECOLassessment at primary for examinations and build its capacity to management of ECOL. ECOL under ESDP I focused on staffand secondary. take on this role. established and filled 7 posts for full time recruitment and training. Full

staff. Study tours have been undertaken. institutional development wasmoved to ESDPII.

8. Recruit additional Hire 1,300 teachers or 260/annum, 70% The target of hiring the 1,300 teachers After 2-3 years, the pool of qualifiedteachers, especially at to work at lower primary. has been achieved, and 70% of the teachers was exhausted. Grants werelower primary level. teachers have been allocated to Stds 1-3. used to hire unqualified teachers

who were put in higher grades andqualified teachers moved toStandards 1-3.

9. Professional support for (a) Conduct in-service workshops at (a) In-service workshops regularlyteachers. national, district and sub-district levels. offered, on problems identified during

inspections.(b) T rain district resource teachers andselected curriculum disseminators. (b) Initial target of 70 DRTs was (b) DRTs paid by GOL. There is

achieved. There are currently 80 DRTs. high demand for DRTs in rural,(c) Train secondary school teachers in multilevel schools. A new target ofcore subjects. (c) No in-service program for secondary 100 is set for ESDP II.

school teachers established.

10. Efficiency (a) Introduce policies to reduce repetition (a) Policy to limit repetition (a) Repetition rates have decreasedimprovements. by limiting repetition to two per primary implemented. from 30% in Standard I and 25% in

cycle. Standards 2 and 3 in 1990 to 24%in Standard I and 21% in Standards2 and 3 in 1995.

(b) Introduce policy to reduce under- and (b) MOE now checking baptismal andover-age entrants. clinical certificates and conducted public (b) The proportion of children under

relations campaign in communities. the age of six in Standard 1 hasdecreased from 7.4% in 1990 to1.7% in 1996. The proportion ofover-age children remained at 23%.

B. TEACHER TRAINING1. Strengthen NTTC's (a) Construct, furnish, and equip (a) New administration block constructed,

institutional capacity to additional office space and provide furnished, equipped, and operational.expand teacher output. pedagogical equipment and materials.


INDICATORS ESTIMATED AT ACTUAL C=N0 X f X S X APPRAIA L I

(b) Upgrade library. (b) Received improved cataloging andsecurity system, new books and journals,and a librarian was trained.

(c) Expansion of dining hall, new(c) Expand hostel accommodations, (c) Twelve new hostels for 504 students multipurpose hall, and alterationkitchen and dining facilities and build constructed and furnished; 10 new and renovation of existing hostelsclassroom and faculty office space and a classrooms and 2 faculty offices not under taken due to lack oflarge multi-purpose hall. constructed and furnished. Kitchen/dining financial support from donors.

hall renovated.

2. Upgrade standards in (a) Provide fellowships for NTTC (a) 9 staff received first degrees and 4primary (pre-and in- lecturers and provide long-term TA for received Masters degrees. USAIDservice) teacher training in-service and materials development. financed TA for in-service. Training onprograms. materials development done by UNISA.

(b) Evaluate effectiveness of existing (b) Evaluation of LIET Program (b) Evaluation indicated value ofprogram. completed. program, and identified problems

with field supervision, inadequateresources, and weak management.NTTC is currently addressing theseissues.

C. TECHNICAL & VOCATIONAL EDUCATION1. Enhance quality and (a) Develop & implement standardized (a) Curriculum development in six

cost-effectiveness. modular curriculum in 4 crafts level subject areas completed and in use.courses at 3 institutions.

(b) Regional fellowships not used(b) Provide 10 regional fellowships for (b) Three study tours taken to Botswana because too few positions orTVE staff; study tours to region. and Zimbabwe (2). personnel in TVD to afford

absences.(c) Introduce evening courses in a (c) Evening courses introduced at LPminimum of 2 TVE institutions. only.

2. Strengthen skills (a) Conduct feasibility study on financial (a) Feasibility study completed.certification/trade aspects of operating skillstesting. certification/trade-testing centre. (b) Based on recommendations of (b) Funds re-allocated to provide

feasibility study, building not additional physical facilities at TTI(b) Construct and furnish centre. undertaken. & LTS.



3. Policy development. (a) Review of TVE Act. (a) Review (Macauley) completed in (a) Recommendations of the1992 of the Technical and Vocational Macauley review not implementedTraining Act (No. 25) 1984. because of lack of institutional

(b) Study of options for increasing role of capacity to use the information.employers. (b) HEDCO options study completed. New review of the TVE Act and the

previous 1992 review is currently(c) Small-scale tracer study. (c) Tracer study completed by Sechaba underway with ESDP II.

in 1996.

D. NATIONAL UNIVERSITY OF LESOTHO1. Quality enhancement and (a) Implement subject system or (a) Subject system not fully (a) Study on subject system

cost-containment. modified course unit system and related implemented; currently using modified completed in January, 1999.academic planning. course system in some faculties. Indicated wide-spread confusion,

and varied practices.(b) Conduct study of university (b) Cost containment study completedoverheads, implement cost-saving by CHEMS. A few recommendations (b) Cost containment to continue.measures in non-academic planning. were implemented and others are still Alumni Association is cooperating

under consideration. by exploring strategies of(c) Fund overseas training and fundraising.fellowships for 5 staff per year. (c) At least 5 staff members sent for

training overseas every year (recordsavailable on 20 since 1996).

(d) Computerize library and stock books (d) Library computerized. Booksand journals. supplied. Security system installed.

(e) Expand current science laboratory (e) New science laboratory block (e) Equipment for sciencefacilities and provide furniture and constructed, furnished, and equipped. laboratory block procured withequipment. savings from procurement of

primary facilities. No financialprovision was originally made.

E. SECTORAL MANAGEMENT1. Strengthen MOE (a) Reorganize central MOE. (a) Second tier below PS was

capacity and efficiency established. Five CEO positions createdand implement policies and filled.for decentralization.


INDICATORS ESTIMATED AT ACTUAL COMMENTSAPPRAISAL X

(b) Strengthen field inspectorate, district (b) Field services supervision system (b) DRCs serve as office blocks forMOE offices, and establish 10 District established. Education Act (No. 10) many MOE departments andResource Centers. enacted in 1995. Ten new DRC's agencies and bring services closer to

constructed, fumished and equipped their clients. To date, there are nowith staff equipment, materials, and (13) educational resources available atvehicles. the DRC. Under its new project,

ADB will finance a limited(c) Strengthen higher education (c) Higher education inspectorate not purchase of books/other resources.inspectorate, NCDC, IMRC, and support established. IMRC closed and resourcesservices section. reallocated to NCDC.

2. Strengthen School-level (a) Train 80% of headteachers. (a) 950 headteachers trained. EmphasisManagement. on improvement of quality and

efficiency.

(b) Help communities organize school (b) 800 approved ACSs were trained by (b) Additional training for ACSsboards and PTAs in at least 5 districts. a task force of EOs and DRTs. planned under ESDP II.

3. Monitoring and (a) Establish EMIS. (a) Produced EMIS impact assessment (a) New assistance required andEvaluation report in 1998. Indicator reports were planned under ESDP II. Work to

also available annually until 1997. start in December, 1999. Contractorfinalized.

(b) Improve strategic annual planning (b) School mapping exercise completedwithin MOE and introduce task-based and used for monitoring allocation of (b) The 1998 Impact Assessmentbudgeting. fumishings and equipment. report, compiled by the PU,

indicates enhanced managementcapacity to monitor reform.



Table 6: Key Indicators for Project Operation

PROJECT IMEPACT ACHIEVED AND TO BE ISSUES REMAINING FOLLOW UP ACTIONSMAINTAINED (UNDER ESDP II OR OTHER)QUALITY IMPROVEMENTS-BASIC EDUCATIONLowered pupil: teacher ratio, especially at lower This improvement is at risk with the introduction of Capacity for enrollment at NTTC to beprimary level (from 54:1 to 49:1) Free Primary Education (FPE) and will need to be expanded with rehabilitation of student

monitored carefully. hostels.Increased access and reduced overcrowding by There is still a shortfall of more than 2600 classrooms About 480 classrooms are planned to beconstructing 800 primary school classrooms needed to reduce overcrowding, a situation which will constructed during the next 4 years (280 by

become more urgent with implementation of FPE. ADB and 200 by IDA-ESDP II).Temporary shelters may be constructed tocope with influx of new students underFPE.

Enhanced support to teachers In-service support is not adequate, particularly for NTTC will develop a distance educationteachers in remote areas. system which will provide additional in-Ten District Resource Centers were built and staffed, service support and will be classroom-but most contain little/no books or other resource based.materials. ADB to supply libraries for DRCs.

Strengthened institutional capacity of NTTC Alteration and renovation of existing students' hostels Alteration and renovation of existingand construction of multipurpose hall not completed as hostels are being fmanced under ESDP IIplanned due to lack of funding. Donors to be identified to finance the

multipurpose hallEstablished new primary education curriculum The design and content of subject syllabi were Full implementation of the new curriculum

improved in all subjects but testing is not complete for will be achieved in 2001. Revisedall standards. curriculum for 14 junior secondary

subjects is now being tested in trial schoolsand teachers' guides will be developed.

INCREASED EFFICIENCY- BASIC EDUCATIONEliminated problem of under-age enrollment Will need careful monitoring with implementation of Continuous and strict monitoring that each

FPE. child brings the required documentation toschool. These include: birth certificate,clinic card, baptismal certificate, andevidence provided by the Chief.


PROJIECT IMPACT ACHIEVED AND TO BE ISSUES REMAINING FOLLOW UP ACTIONSMAINTAINED (UNDER ESDP I1 OR OTHER)Implemented an enhanced system of assessment The PSLE and JCE were localized under newly ECOL needs capacity building, planned

established ECOL. under ESDP II through a twinningarrangement. Potential twins have beenshort-listed.

TARGETED IMPROVEMENTS IN TVE

LP granted autonomy Need to improve sub-sectoral management. Policy development and capacity buildingplanned under ESDP II and in coordinationwith technical assistance from GTZ.

QUALITY & EFFICIENCYIMPROVED AT NULIntroduced some cost-containment initiatives Limited number of recommendations in CHEMS report Cost-containment committee at NUL plans to

have been implemented. continue meeting to monitor progress andmove forward with additionalimplementation plans.

Enhanced NUL capacity for science research and Lack of funding for maintenance of laboratories and for NUL has included these items in their budget

Teaching purchasing disposables used in experiments. proposal for the upcoming fiscal year.

IMPROVED SECTORALMANAGEMENT AND FINANCINGStrengthened decentralized management of education Need clearly defined plan for decentralization, Senior staff undertook a study tour to New

including how it will integrate with the Local Zealand and will forrnulate a plan forGovernment Act. decentralization to be presented to PS. The

MOE's lawyer will then work with the teamto ensure it fits in with Local Governmentrequirements. 10 planners are to be recruited,one per district.

Improved capacity for management at school level Not all ACS have been trained and Education Act has Translation and additional training planned

inot been translated into Sesotho. under ESDP 11.



Table 7: Studies Conducted Under Project

Study/Purpose of Study Consultants Status Cost US$ ImpactEffecting school change M. Mkandawire Completed 13,131 Improved

& Company learning/teaching processdue to in-service teachertraining

School Mapping Sechaba Completed 190,736 New classroomConsultants/ construction to be basedInfovision on this study.

Review of TVE Act G.G. Macaulay Completed 13,499 Act is being reviewedagain under ESDP II

Options for further HEDCO Completed 70,030 Policy formulation nowdevelopment of Technical and complete incorporatedVocational Education in apprenticeship and levy.LesothoTracer study of Post- Sechaba Completed 39,200 Certificate and diplomaSecondary Technical and Consultants introduced at post-Vocational Graduates in secondary level addressesLesotho disparity between

institutions.LP Autonomy Feasibility F. Baffoe Completed 7,000 LP granted autonomy.NUL Cost Containment Chemms Completed 28,082 Partially implemented.

Continue to pursue.PSLE Transfer Square One Completed 30,740 Transfer now effective,

Company though costs increased.Study of local level school Ms. Pitso & Completed 29,931 School-basedmanagement Makhetha management enshrined in

Education Act andoperational nationwide.

Conditions of Service for Prof. Mohapeloa Completed 7,095 Career structure in placeTeachers and teachers aware they

are GOL employees.Financial Management Study M. Moila Completed 12,000 Strengthened

management of projectfinances.

Economic Consultancy to PU Dr. V. Lavine Completed 17,058 1991/92 MOE sector planbased on analysis of thisstudy.

Review of Education S. Baholo Completed 5,384 Education Act is result ofLegislation and Regulation this study. Regulations

now being finalized andlaw being translated intoSesotho for training ofASCs.



Table 8A: Project Costs 1/2/

Expenditure Category SAR Estimates Actual_us s $M:illion_ US $ Million

Local Foreign Total Local Foreign TotalA. BASIC EDUCATION

1. Facilities 7.5 14.2 21.72. Curriculum &

Instructional Materials 0.8 0.2 1.13. Assessment 0.7 1.3 2.04. Professional Support 1.9 0.4 2.35. Efficiency 0.1 0.2 0.36. Teacher Recruitment 8.7 - 8.7

Subtotal 19.7 16.3 36.0 44.80B. TEACHER TRAINING

1. NTTC Strengthening 2.3 3.9 6.22. Pre-/Inservice Training 2.2 0.9 3.1

Subtotal 4.5 4.8 9.3 4.44C. TECH & VOC

EDUCATION 0.6 0.9 1.51. Quality & Cost 0.5 0.6 1.1

Effectiveness 0.1 0.1 0.22. Skills Cert/Industry

Training3. Policy Development

(a) Subtotal 1.2 1.6 2.8 1.98D. NATIONAL UNIV OF

LESOTHO1. Quality & Cost 0.5 2.2 2.7 5.65Containment

E. SECTORALMANAGEMENT 3.9 2.7 6.61. Reorganization of MOE 1.2 2.3 3.52. Decentralization of MOE 0.9 0.3 1.23. Local Level School 0.4 1.5 1.9

Mngt.4. Monitoring & Evaluation

(b) Subtotal 6.4 6.8 13.2 14.32F. REFINANCING PPF 0.4 0.5 0.9G. CONTINGENCIES

1. Physical Contingencies 1.4 2.7 4.12. Price Contingencies 2.8 2.7 5.5

Subtotal 4.2 5.4 9.7(c) TOTAL 36.9 37.7 74.60 71.19

PROJECT COSTS

I/ Numbers may not add up exactly due to rounding2/ Includes US $3.4 million in taxes and duties



Table 8B: Project Financing

APPRAISAL ESTIMATES ACTUALSOURCE IN US $ EXPENDITURES

IN US$$

GOL 20.30 19.86IDA 25.20 24.89USAID 24.90 14.50EC 4.20 11.94

(d) TOTAL 74.60 71.19



Table 9: Status of Legal Covenants

DCA Description of Covenant Covenant Present Original Actual date CommentsReference type 1/ status date

Article III The Borrower declares its commitment to the 05 C N/A N/A Complied with throughout the project.

3.01 (a) objectives of the Project as set forth in Schedule 2 tothe DCA and, to this end, shall carry out the Projectthrough MOE with due diligence and efficiency and inconformity with appropriate administrative, financial,technical and education practices, and shall provide,promptly as needed, the funds, facilities, services andother resources required for the Project.

Article III Without limitation upon the provisions of 3.01 (a) and 05 C N/A N/A Complied with throughout the project.

3.01 (b) except as the Borrower and the Association shallotherwise agree, the Borrower shall carry out theProject in accordance with the ImplementationProgram set for the in Schedule 4 of DCA.

Ar3cle III Except as the Association shall otherwise agree, 03 C N/A N/A Complied with throughout the project.3.02 procurement of the goods, works and consultants'

services required for the Project and to be financed bythe proceeds of the Credit shall be governed by theprovisions of Schedule 3 of DCA.

Article III 'I'he Borrower shall increase recurrent resource 04 C By fiscal year From fiscal Compliance fulfilled. The recurrent

3.03 allocations to education by 54.4% in real terms 1991/1992. year budget has increased dramatically bybetween 1990/91 and 1991/92 and by at least 4% per 1991/1992. approximately 360% since 1991,annum in real terms thereafter, until completion of the representing 28% of the national budget.project. The GOL's readiness and compliance to

this condition was helpful in the takeoff ofthe project.



Article III The Borrower shall, during implementation of the 03 C Not provided. January 1996. Compliance fulfilled. Over the plan

3.04 Project, recruit at least 1,300 new primary teachers, period, over 1,400 primary school teachers260 per year, and allocate at least 70% of such new were hired, with more than 70% of theseteachers to the lower primary grades (standards I allocated to Standards I to 3.through 3).

Article IV The Borrower shall maintain or cause to be 01 CP N/A N/A The MOE did meet the reporting

4.01 (a) maintained records and accounts adequate to reflect in requirements. However, the financialaccordance with sound accounting practices the management system was not significantlyoperations, resources and expenditures in respect of improved in order to ensure soundthe Project of the departments or agencies of the accounting practices. This is now beingBorrower responsible for carrying out the Project or addressing through recruitment andany part thereof. systems development under ESDP II.

Article IV The Borrower shall: 01 C N/A N/A The audit reports were audited and the4.01 (b) report provided to the Bank on an annual

(i) have the records and accounts referred to in 4.01 basis. The final audit, covering the last 15(a), including those for the Special Account for each months of the project, is due to the Bankfiscal year audited, in accordance with appropriate by December 31, 1999.auditing principles consistently applied, byindependent auditors acceptable to the Association. In order to begin ESDP II with all

financial management issues cleared, the(ii) furnish the Association, as soon as available, but Bank hired KPMG to reconcile andnot later than six months after end of each such year, a regularize the project accounts. Therecertified copy of the report of such audit by said remain a few pieces of missingauditors, of such scope and in such detail as the information required before this can beAssociation shall have reasonably requested. completed. The MOE and the Bank's

Financial Management Specialist are

(iii) funish to the Association such other information following this up with the relevant partiesconcerning said records, accounts and audit thereof as (Lesotho Bank and the Office of thethe Association shall from time to time reasonably Auditor General).request.



Article IV .t: \: 4.01 (c) For all expenditures with respect to which withdrawals 01 C N/A N/A While USAID was providing funding to

4.01 (c) from the Credit Account were made on the basis of the project, the project accounts were

SOEs, Borrower shall: audited by an external, private auditingfirm. However, during the course of the

(i) maintain or cause to be maintained, in accordance last 2 years of the project the responsibilitywith 4.01(a), records and accounts reflecting such reverted back to the Office of the Auditorexpenditures; General. The Auditor General issued a

Management Letter with regard to the

(ii) retain, until at least one year after the Association fiscal year ending March 31, 1998 and thehas received the audit report for the fiscal year in MOE is now addressing those issues.

which the last withdrawal from the Credit Account orpayment out of the Special Account was made, allrecords evidencing such expenditures;

(iii) enable the Association's representatives toexamine such records; and

(iv) ensure that such records and accounts areincluded in the annual audit referred to in 4.01 (b) thatthe report of such audit contains a separate opinion bysaid auditors as to whether the statements ofexpenditure submitted during such fiscal year,together with the procedures and internal controlsinvolved in their preparation, can be relied upon tosupport the related withdrawals.


DCA Description of Covenant Covenant Present Original Actual date CommentsReference type lI status date

Para. 2 Borrower shall arrange for an independent evaluation 10 NC Study by This evaluation was not conducted.Para. 2 of the self-reliance activities in primary schools to be March 31,

conducted; send the findings to the Association for 1993review and evaluation and implementrecommendations. Implement

recommend-ations by

Sept. 30, 1999

ScheduleP V Ensure that an independent evaluation of the 10 NC Evaluation by Not provided. Review of existing materials is nowPara. 3 diversified secondary education program shall be March 31, underway. This work has been delayed by

carried out; the findings of such evaluation reviewed 1993 the complications accompanying theby Association; and agreed recommendations uncertainty of the future of JC and COSC.implemented. Implement

recommnend-ations by

September 30,1994

Schedule IV The Borrower shall introduce evening classes in a 10 CP March 31, Not provided. Evening classes have been introduced atPara. 4 minimum of 12 institutions with technical education 1993 only one technical education institution

facilities. (LP).

Schedule IV The Borrower shall jointly with the Association 9 CP March 1993; December 16, The Borrower and the Bank conducted aPara. 5 undertake 2 project implementation reviews 1995 Mid-term review at which time the project

September was restructured according to the review's1994 recommendations.



Table 10: Compliance with Operational Manual Statements

Statement CommentsNumnber and Title

OD 10.60 Paras. 26-27 of OD 10.60 state that, as a minimum, financial reports should normally comprise a statement of receipts and payments,Accounting, as well as total project costs and sources of financing, and that the supporting schedules of statements should disclose annual andFinancial supplemental budget allotments, actual expenditures under each budget category for which Bank financing is furnished, and the actualReporting, and expenditures and amounts of Bank disbursements claimed. In short, financial reporting should cover all accounts pertaining to projectAuditing expenditures, irrespective of sources of financing.

Financial management was weak throughout the project, primarily due to understaffing. However, reporting requirements wereultimately met. The final audit for the project, to cover the period from April 1998 through June 1999, is due to the Bank byDecember 31, 1999.

The Bank usually expects the Borrower to demonstrate commitment to the project by making a 10% minimum contribution to projectOP 6.30 cost (net of taxes and duties).Local Cost Financingand Cost Sharing The Borrower's contribution totaled 27% percent of total project cost which met the estimated contribution projected at appraisal.

OD 13.55 The borrower prepares and makes available to the Bank its own evaluation on the project's execution and initial operation, cost andbenefits, the Bank's and borrower's performance of their respective obligations under the loan agreement, and the extent to which the

ICR preparation purposes of the loan were achieved, adopts a plan for the operational phase of the project and assists the Bank in ICR preparation.

The Ministry of Education prepared its own evaluation of the project's achievements (attached to the ICR as Appendix B) andparticipated in the ICR preparation with the Bank team.



Table 11: Bank Resources - Staff Inputs

Stage of Planned Actual

Project Cycle Weeks US$'V00 Weeks US$'000

Preparationto NA NA 81.9 159.7Appraisal

Appraisal NA NA 27.8 38.2

Negotiations through NA NA 1.5 3.0Board Approval

Supervision NA NA 170.9 401.4

Completion 18 37.8 5.3 26.25

Total Project Costs 6.0 12.3 282.3 1476.3



Table 12: Bank Resources: Missions

Stge of proect |Month/ Number Days Specialized stff Imp enttion Developmet Teof ProblemsCyele year of in skills status Impact 2/

persons field represented 2/

Identification November 1989 7 17 EdS, Imp.Preparation Feb/March 1990 1 18 _ Preparation June 1990 4 12 EdSPreparation August 1990 2 11 _1__

Preparation Nov/Dec 1990 5 12 Ar, EdSAppraisal through March 1991 9 21 Ar, Fin .Board ApprovalBoard throughEffectivenessSupervision Aug/Sept. 1992 2 13 Economist, EdS 1 1 Unresolved income tax liability of

long-term consultants; slow pace ofcreating and filling posts by the PublicService for reorganized MOE;Strathclyde contract; whether 3residential or 10 non-residentialdistrict resource centers will be built

Supervision Feb/March 1993 1 18 EdS No PSR No PSR Church/state dispute on control ofteachers; conflict between Ministriesof Education and Works on differingroles in classroom construction; repealof New Education Order

Supervision May 1993 1 7 EdS 2 2 Dispute between church and state overnew legislation; delay in classroomconstruction because of refusal byMinistry of Works to give a waiver toMOE; possibility of losing some ECfunds if these are not disbursed by endof April 1994; unsatisfactory state of


Stage of project Month/ Number Days Specialized staff Implementation Development Types of ProblemsCycle year of in skills status Impact 21

persons field represented 2/I _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ .__ ./ __l_ _,_ _I_ _I

project accounts; slow start of somesub-components which are a conditionfor others to be initiated, for ex.school mapping and cost containmentat MUL

Supervision August 1993 6 No PSR No PSR No Aide Memoire availableSupervision October 1993 2 9 EdS, Proc. 2 2 State/church dispute remains

unresolved; weak implementationcapacity - MOE's limited capacity isimpacting adversely on projectimplementation. Slow start of somesub-components largely as result ofthe above.

Supervision May 1994 1 9 EdS 2 2 Unresolved church/state dispute overthe Education Order has delayeddecentralization of education to theschool level and limited MOE'sability to utilize teaches moreefficiently. Program design andimplementation at NTTC and LP hasbeen severely constrained by lack ofautonomy. Government failure tofulfill agreed measures and weakplanning and management capacityare the two major problems facing theproject.

Supervision July 1994 1 11 EdS, FinM NO PSR NO PSR Weak planning and implementationcapacity continues to plague the

Ratings from Ratings from project; there continues to be tooupdate update much reliance on TAs. Delays in

S S filling critical posts compoundsMOE's already weak capacity.

Supervision Nov/Dec 1994 2 11 EdS S S Task force working on the new lawhas proceeded very slowly. Generalconcern among MOE officials that the


Stage of project Month/ Number Days Specialized staff Implementation Development Types of ProblemsCycle year of in skills status Impact 2/

persons field represented 2/

PS's office does not act expeditiouslyto approve applications cleared forrecruitment and promotion.

Supervision May 1995 3 11 Arch, Ed PI, EdS NO PSR NO PSR Delayed passage of Education Law.Uncertainty about amount of AID

Ratings from Ratings from funding and the need for projectupdate update restructuring since AID has decided

S S to end its support with second trancheif and when the new law is gazetted.Other area for concern is MOE'scapacity to implement the projectefficiently and effectively. Seriousgaps in MOE staffing remain.Continued vacancy of FinancialController.

Supervision December 1995 4 11 EdS, Ed PI, No PSR No PSR Weak implementation capacity ofArch, Econ Planning Unit, TVET, the Inspectorate

and Procurement Unit. Procurementof goods and works has beenproblematic due to segmentation ofprocurement arrangements, conflictsbetween the DCA provisions and thelaws of Lesotho, ignorance of WBprocurement guidelines (exacerbatedby high staff turnover at the GOLTender Board) and general lack ofprocurement expertise in Government.Serious concerns on quality andaccuracy of project accounts.

Supervision July 1996 1 10 EdS S S Two major problems constrainingsmooth implementation areprocurement and staffing. Due to lackof procurement expertise, there is ahuge disbursement lag. (exception iscivil works). Planning Unit isunderstaffed and has lost the TA


Stage of project Month/ Number Days Specialized staff Implementation Development Types of ProblemsCycle year of in skills status Impact 2/

persons field represented 2/1/

Education Planning Advisor.Supervision December 1996 2 11 EdS, Architect S S Lack of procurement capacity and

expertise in MOE. Procurement agentis not yet in place and may take untilat least May 1997. Until then,procurement backlog is likely toincrease leading to huge disbursementlag. Despite many promises fromHOL, capacity weakness of MOEcontinues, esp. its Planning Unit.NTTC and LP capacity weakness notlikely to improve without law enacted.

Supervision February 1997 2 7 EdS, Architect NO PSR NO PSR Procurement of goods and works hasbeen problematic. Procurement agentshould be in place around May 1997.The DCA condition of satisfactoryimplementation of cost containmentmeasures at NUL for release of fundsfor expansion of science laboratoryfacilities and acquisition of furnitureand equipment delayed. MOE andNUL will submit report documentingprogress on each condition by mid-March.

Supervision May 1997 9 EdS S S Delays in procurement of NTTChostels/concern that EFU expediteactivities so that hostels can beconstructed during remaining life ofproject.No progress in procurement ofadditional facilities for the skillstraining centers. Due to inadequatefunding it was agreed to allocatefunding to only Thaba Tseka and

l______________ =_____________ ________________ _____ Bishop Allard/Roma.


Stage of project Month/ Number Days Specialized staff Implementation Development Type Of ProblemsCyele year of in skills status Impact t/

persons rield represented 2/

Supervision December 1997 3 12 EdS, Econ, Arch S S Given the need for additional time tocomplete planned activities, GOL willrequest for second one-year extensionand reallocation of funds amongcategories. Will need to monitorNTTC hostels, NUL Laboratories,Thaba Tseka DRC which are expectedto be completed around or after

_______ December 1998.Supervision June 1998 9 17 EdS, Fin, Pop, S S Careful monitoring and supervision

FinMgt, required for numerous civil works andgoods contracts under tightimplementation schedule. Insufficientfunds allocated for procurement ofNUL computer/science equipment.MOE will request reallocating fundsset aside for training of headteachersand committees and from savings inother civil works categories to coverNUL procurement. Weaknesses inproject financial management.

Supervision Nov/Dec 1998 2 3 Office of Auditor General producedreport raising several concerns relatingto project procurement. As a result,GOL and WB have arranged forindependent procurement reviewscheduled for May 1999.

Supervision June 1999 1 3 EdS NO PSR NO PSR

Completion November 1999 2 12 EdS

Appendices

APPENDIX A: COMPLETION AIDE MEMOIRE

LESOTHOEDUCATION SECTOR DEVELOPMENT PROJECT (ESDP I)

AIDE MEMOIREImplementation Completion Mission

November 19, 1999

Background

1. A World Bank ICR mission comprising Trish Tierney (Task Manager, AFTHI) and WesSnyder (Consultant, University of Montana) visited Lesotho from November 14-24, 1999. Themission worked jointly with the Ministry of Education in order to prepare the Bank's assessmentof ESDP I, which closed on June 30, 1999. The mission met with officials from the followingdepartments and institutions: Planning Unit (including Accounts Section and EFU); ECOL;NCDC; NTTC; NUL; TVD; and TSD. In addition, the mission visited the following sitesrelating to the project: 4 primary schools and 2 district resource centers (in Mafeteng andMaseru), the NUL science block, NTTC student hostels and NTTC library. The mission wishesto thank all those with whom it met for their kind cooperation and the valuable informationprovided.

In accordance with GOL policy, Free Primary Education will be implemented from January 2000onward, starting with Standard One. In connection with this, MOE will hold a NationalSymposium on Free Primary Education (Nov. 22-24). Due to the time constraints this has placedon MOE senior staff, the wrap-up meeting is being held prior to completion of the mission.Subsequent to any meetings the mission holds the week of Nov. 22, it will revise the aidememoire as needed and send to MOE for comments on the new information. After departingfrom Lesotho, the mission will prepare the draft ICR. The draft ICR will be reviewed at aninternal Bank meeting on December 16, 1999 after which time the draft report will be sent toMOE for comments. The final report is due to the World Bank Board of Directors no later thanJanuary 31, 2000.

Implementation Completion Report (ICR)

3. The mission had the benefit of the Ministry of Education's own ImplementationCompletion Report (ICR), which will be attached in full as an appendix to the ICR. The missionnoted from MOE's report and from discussions held that the MOE is generally satisfied with theoutcome of the project, in terms of progress towards achieving the objectives of the project. TheICR will address specific concerns and achievements in detail. The MOE has also providedvaluable information which contributed to the completion of Table 5 (please see the attached)

Appendices

which outlines the key indicators for project implementation (planned versus actual). This is tobe reviewed during the wrap-up meeting and comments incorporated.

Outstanding Information for ICR

4. The Accounts Section is currently working on the completion of Table 8A (Project Costs)and Table 8B (Project Financing). The mission emphasized the importance of these two tablesand in an attempt to expedite the process, the meeting agreed to use a simplified version of thetables. The Accounts Section agreed to send these completed tables, via fax, to World Bank byMonday, November 29, 1999.

5. Table 7 (Studies Conducted Under the Project) is not yet filled out. The Planning Unit isworking on this and will provide the mission with a copy by Wednesday, November 24.

6. The mission will complete the remaining tables and present them in mid-December, as partof the draft ICR, to the MOE for review and comment.

Financial Management - ESDP I

7. Under a short-term consultancy (financed by the Bank-administered PHRD grant), KPMGrecently undertook to reconcile and regularize the accounts of the five bank accounts maintainedby MOE under ESDP I. To date, the accounts have been reconciled. The completion of thisassignment, which includes regularizing the accounts, cannot be achieved until KPMG receivesthe following information:

(a) An explanation for the significant difference between the closing balance of March 31, 1997and the opening balance of April 1, 1997; and

(b) Information relating to the payments effected via Banque Credit Lyonnais for the periodbetween November 30, 1998 through June 30, 1999.

8. The mission urged the Accounts Section to follow-up on these matters urgently. In thecase of item (a), the Accounts Section has already requested the Office of the Auditor General toexplain this discrepancy but has not yet received the information. With respect to item (b), theBanque Credit Lyonnais has said it will only deal directly with Lesotho Bank. However, givenits own unfortunate circumstances, Lesotho Bank has been less than cooperative in providing. therecords requested by the Accounts Section. The Accounts Section kindly agreed to contact bothparties again in further attempts to make progress. Upon receipt of the outstanding information,KPMG will regularize the accounts and present them to MOE and Bank for review. If necessary,the Bank's Financial Management Specialist will meet with Accounts Section, KPMG andOffice of the Auditor-General when on mission in Lesotho in early December.

Appendices

9. The mission reminded Accounts Section and Director of Planning that the final audit forESDP I is due to the Bank no later than December 31, 1999. As outlined in the correspondencesent to MOE on October 4, 1999, this audit should cover the 15-month period of April 1, 1998 -June 30, 1999. The Accounts Section agreed to discuss this with the Office of the AuditorGeneral in order to check on the status of this audit and to inform the Bank of the expected dateof submission. The Auditor General issued a Management Letter with regard to the audit for thefiscal year ending March 31, 1998. The mission and the Accounts Section discussed and agreedthe importance of properly addressing the queries raised by the Management Letter and MOEconfirmed that it will take the necessary actions to satisfactorily address these queries.

Supervision of ESDP II

10. Financial Management: The mission met with Director of Planning and Peter Parks(KPMG) in order to review the draft Procedures Manual and System of Accounting recentlyprepared under a short-term consultancy (financed by the Bank-administered PHRD grant). Themeeting provided Mr. Parks with detailed comments, which he noted and will incorporate intothe final submission. The mission and Mr. Parks also met briefly with the Accounts Section, atwhich time Mr. Parks agreed to return the following week to discuss any additional commentsthe Accounts Section may have on the draft manual. Mr. Parks will also offer some hands-ontraining to ensure the Accounts staff is able to use the spreadsheet-based accounting system.

I1. EMIS Consultancy: The MOE is currently negotiating with the Academy for EducationalDevelopment (AED) with regard to the EMIS consultancy. As per the Bank 'Guidelines forSelection of Consultants' upon completion of negotiations MOE will request the Bank's noobjection for awarding of the contract. As outlined in the logframe of the Project AppraisalDocument, one of the indicators for the project is to provide baseline information, gathered bythe EMIS, by December 1999. Given that we are now well past the original start date for theconsultancy - July 1999 - the mission hopes that MOE can finalize the process and allow workto begin as soon as possible.

12. Detailed Project Costs: The final project costs have been broken down in detail, bycomponent, as based on past discussions and agreements as well as the information provided inthe Project Implementation Manual. These costs will be presented to the budget committee andthen distributed to all Heads of Programs.

13. National Symposium on Free Primary Education: The mission looks forward to attendingthe first day of the symposium (November 22). Regrettably, the mission will not be available toparticipate in the follow-on donors meeting scheduled for November 25 (previously planned forNovember 19). In advance of that meeting, the mission will discuss with MOE the possiblecontributions other donors might make in support of Free Primary Education and MOE will briefthe Bank on the outcomes.

SC-AN D IE ECo0 py

APPENDIX BBORROWERS EVALUATION REPORT A p

, IFIIX ~~~(CoMhaftan 0r# 1OPCrGESW C0M0AdA:-

Ministry of Education andManpowez Development

Our Ref. ED/N/9 29th July, 1999

Your Ref.

To: Mr. Dzingai Mutumbuka Fax No. (202) 473 8239Education SpecialistThe World Bank1818 H. Street, N.W.Washington D.C.

From: M. Makakole Fax No. (09266) 311 274Planning Unit - MOEP.O. Box 47Maseru - 100

Dear Mr Mutumbuka,

Subject: Project Completion Report - Credit 2287 LSO

As agreed please find a copy of ESDP Completion Report. The original will be send by DHLcourier.

Best regards,

M. Makakole (Mrs)For Principal Secretary for Education

and Manpower Development

P.O. BOX 47 MASERU, 100 TEL: 313628 FAX: 310206 TELEGRAM: EDUCATION

BORROWERS PERSPECTIVE ON IMPLEMENTATION COMPLETIONREPORT

EDUCATION SECTOR DEVELOPMENT PROJECT 1991192 - 1995/96

PREPARED BY:MINISTRY OF EDUCATION, PLANNING UNIT

1 9TH JULY, 1999

Background - The Education Sector Development Project (I) covering the periodfrom 1991/92 - 1995/96/99 was a multilateral donor funded project. The mainfinanciers included the International Development Association (IDA), UnitedStates Agency for International Development (USAID) and the European Union(EU). The African Development Bank (ADB) also participated in financing thestrengthening of secondary education as a component of the Development Plan.

There were two major objectives that underpinned and motivated educationreforms, namely:

i. supporting investments aimed at increasing the quality, efficiency andrelevance of educational programs at all levels of the education and trainingsystem, with particular emphasis on primary education; and

ii. Helping to address the key management, financial and resource allocationand staffing matters which constrained overall sectoral performance.

The project focussed mainly on five key areas: basic education; teacher training;Technical and Vocational Education; National University of Lesotho; and sectoralfinance and management. Within each specific area there were several activitiesto be completed. These activities, their achievements and constraints form thebasis of this report. The report will also review lessons learned duringimplementation.

Finance

Objectives - As one of the pre-conditions for the take-off of the project, theGovernment of Lesotho had to make a commitment to revise the pattern of itsfinancial allocation including expenditure. The recurrent budget was expected toincrease at the rate of four (4) per cent per annum in real terms, and seventy (70)per cent of the budget would be allocated to primary.

Achievements - Recurrent Budget: The government has met all its financialobligations. The recurrent budget has increased dramatically by approximately360 per cent since 1991, representing 28 per cent of the national budget.

The government's readiness and compliance to the conditions was helpful in thetake off of the project. Even the accelerated rate of implementation can beattributed to the commitment and suppoft the government has exhibited.

Lessons learned - It is imperative that the government and the Bank makepreparations well ahead of time. This facilitates for the smooth running of theproject and allows for full participation and understanding of the project contentby all stakeholders thus gaining their commitment.

Basic Education

Objective - Construction of additional classrooms, sanitary facilities, andfurnishing of new and existing classrooms at primary level; revision of curriculum;production and dissemination of instructional materials; policies on enrollment ofunder- and over-age students, and reducing repetition rates; and the recruitmentof additional teachers.

Achievements - During the plan period, 1094 new classrooms, 241 offices, 2220latrines were constructed and 49 classrooms renovated. All associated furniturewas provided. In addition, more than 50 per cent of existing classrooms werefurnished. 10 District Resource Centres (DRCs) were constructed, furnished andare operational.

Many of the planned activities relating to curriculum development have beensuccessfully implemented. The National Curriculum Committee (NCC) has beenlegally constituted; implementation of revised syllabi has been completed andtrial tested in 50 schools up to standard 5, and training provided for teachers onthe revised curriculum; the National Curriculum Development Centre (NCDC)management has been strengthened by the appointment of the deputy director.

The structure of subjects has been completed and attainment tests administeredin selected subjects up to standard 3.

The enrolment of under - age children has been eliminated.

Over the plan period. over 1400 primary school teachers have been hired and thepupil teacher ratio of 1: 47 was achieved in 1996, well below the targeted ratio,and more than 70 per cent of the teachers allocated to standards 1 to 3.

In addition to teachers, 78 District Resource Teachers (DRTs) have beenrecruited. A hardship allowance was introduced with the purpose of attractingteachers to remote areas. Conditions of service were also revised at par withthose in the public service, along with a new career structure.

The transfer of the Primary School Leaving Certificate (PSLE) has beensuccessfully done. The whole examination is now administered and supervisedby ECOL.

Constraints - The implementation of civil works was delayed due to thereluctance of the ministry of works and finance to grant a waiver to MOE toimplement the civil works component. This is mainly due to the financialregulations that have been in existence before independence and have not beenamended or changed to accommodate emerging developments.

There have also been delays:

i. in signing of contracts, by the relevant authorities, after contracts have beenawarded

ii. in approving requisitions, orders and processing of payments; andiii. in processing payments of the counterpart contribution by the Ministry of

Finance.

Since the beginning of the project the procurement of goods was lagging behindthe civil works due to lack of competent personnel within the procurement ofgoods section.

Lack of coordination between training institutions and the NCDC resulted in non-participation of the training institutions in discussions relating to revised syllabi.

Another set back has been the implementation of a continuous assessment,which was hampered by lack of regular reporting and teacher's reluctance toadminister the assessment, coupled with the Examination Council's reluctance toaccept the validity of teachers' hand scores.

With reference to enrollments of over-age students, inadequate alternativestructures to cater for the needs of the over-age student population havecontributed to the unsuccessful implementation of the policy. And also thedifficulty in redressing traditional occupational patterns (herding, agriculturalengagements etc.) that cause high repetition and drop-out rates still persist.Thus, the repetition rate dropped by only 2 percentage points since 1991.

Lessons learned - There has been very limited support and cooperation fromthe top level management despite numerous efforts of appeal, most often due tolack of familiarity with the project contents and mode of implementation, causinaundue delays.

To avoid recurrence of this situation, and to adhere and meet the time boundtargets and conditionalities set-out in the implementation of the next project, it issuggested that these tasks and responsibilities be assigned to a few members ofthe Financial Management Committee, who will be conversant with projectcontents and procedures to be followed for an unhindered smoothimplementation.

As far as procurement of goods is concerned, the capacity within theprocurement goods section had serious limitations, that were later rectifiedthrough the hiring of a procurement agent, who not only helped procure thegoods, but also provided training for the new staff, thereby building the capacityand effectiveness of the section.

Teacher Training

Objective - Strengthening National Teacher Training College's (NTTC)institutional capacity and upgrading standards in primary pre- and in-serviceteacher training programs.

Achievements - NTTC's capacity was strengthened through the conrstructionand furnishing of 10 new classrooms, and 12 hostels providing accommodationto additional 504 students. The number of students graduating has consequentlyincreased to approximately 300, still less than the targeted figure of 450 perannum.

The structure of courses was revised and some of the programs upgraded. Inaddition, training of staff members on the revised syllabi was accomplished.

Arrangements to grant autonomy to the institution have also been accomplished.But the actual granting of autonomy has not been effected.

Constraints - As the focus was mainly on primary education the projectedtargets intake of 1100 was not accomplished owing to the difficulties on funding,except for a nominal amount of US$1.3 million from USAID and IDA which wasfar below the total estimated cost of approximately US$7.5 million.

Lessons learned -The improvement on primary teacher qualification can beachieved through distant teacher education.

Development of institutional and human resources, i.e., capacity to carry out andmanage the requirements of the project. Also there need to be constant, up-to-date and reliable information on expenditure trends, to enable effective andefficient project implementation.

Technical and Vocational Education

Objectives - Standardization of craft curricula, introduction of evening classes,strengthening of skills certification/trade testing and policy studies.

Achievements - Standardization of craft curriculum was achieved and is nowoperational in all the institutions. Evening classes have been introduced at LP.

Several studies were undertaken to determine the financial and managementcapacity of the Technical and Vocational Division, except the study on policyframework. The study for hotel catering and management course at the LerotholiPolytechnic (LP) was also undertaken.

A proposal to build a skill's certification/or trade testing centre was cancelledfollowing the recommendations of a study, which was conducted to look into theviability of such a centre. The funds were consequently reallocated to improvethe existing TVE institutions, namely, Thaba-Tseka Technical Institute andLeloaleng Trade School through provision of additional physical facilities andequipment. In addition more equipment was provided to all pre-vocationalschools.

LP's autonomy has been passed by parliament through Lerotholi Polytechnic Act,1997. The implementation of the autonomy is awaiting the announcement of thecommencement date as per the requirements of the Act.

Constraints - Human, financial and infrastructural capacity of the institutionhave always remained a prohibiting factor in the ability of LP to expand.

The human capacity dimension has been impeded by the absence of a reliablechannel of communication between the ministry of Foreign Affairs and traininginstitutions abroad, resulting in the forfeiture of training offers for the institution'spersonnel.

Furthermore, LP has always failed to attract services of professional personnelon a permanent basis, partly because of lack of attractive and commensurateincentives.

Lessons learned - Scheduling of all activities, including preparations for theirimplementation should be planned ahead of time to avoid delays often caused bybureaucratic procedures.

National University of Lesotho

Objectives - Modified course unit system and related academic planning,implementation of selected cost containment measures, staff development andresearch, library computerization and stocking and the expansion of laboratoriesfor science teaching and research.

Achievements - A modified course unit system is now operational, but many ofthe recommendations of the Cost Containment study have to date not beenimplemented.

The intended training for staff development was successfully accomplished, anathe library has been computerized and supplied with books and journals.

Additional science laboratories for teaching and research have been constructed.furnished, equipped and are now operational.

In addition, a consultancy unit whose main purpose is to generate income for theuniversity has been established and is now operational.

Constraints - Lethargic attitudes of the management to implement therecommendations of the cost containment study have made it impossible toachieve proposed changes. This delayed the implementation of the physicalexpansion of the science laboratories and associated works.

Lessons learned - The growing resistance within the NUL administration hasbecome a stumbling block in achieving meaningful advancements of theinstitution.

The ministry of education should device means of asserting its authority on theproper use of the subvention.

Sectoral Management

Objectives - Re-organisation and decentralization of the central MOE; in-servicetraining for teachers, management training for head-teachers, and systems forimproving program monitoring and evaluation.

Achievements - The four tier education management structure is now in placeand operational. Furthermore, Education management has been strengthenedwith the establishment of the District Resource Centres in the ten districts as wellas the recruitment of additional education officers in line with the efforts ofdecentralization.

The Education Act of 1995 was passed, making it possible to establish schoolmanagement and advisory committees and enhancing government control overschool management, and the in-service training for head teachers in financial andadministrative management has been partially accomplished.

Lesson learned

There is need for closer cooperation/consultation between school proprietors andthe Ministry of Education. Community participation has been intensified throughthe Education Act, communities have been empowered and are more committedto education policies and strategies. The training of school committees (AdvisoryCommittees) has brought parents, teachers and traditional leaders closer thanbefore.

The monitoring and evaluation of the plan implementation was achieved throughdeveloping guidelines for the preparation and implementation of Annual Plans,preparation of the Impact Assessment Report, the creation of the EducationFacilities Unit and the project accounts, creation of Education Indicators, andtraining of the planning unit staff.

A school mapping exercise was conducted, a Geographic Information Systemdatabase introduced, and the Education Management Informaton Systemimproved.

Constraints - The passing of Education Act was inordinately delayed due toresistance from school proprietors and high turnover in the statutory positions.The regulations are still pending making it difficult to enforce provisions of the act.

There has been an overwhelming staff turn over within the planning unit resultingin great staff shortages, and subsequently impacting on the ability of the unit toperform its monitoring and evaluating functions.

Lessons learned

There is a need for closer cooperation/consultation between school proprietorsand MOE. Community participation has been intensified by the Education Act.and communities have bee empowered and are more committed Lo educationpolicies and strategies. The training of school committees (AdvisoryCommittees) has brought teachers, parents and traditional leaders closer thanbefore.

Bank's performance

Bank's personnel on supervision missions were recognized as professionals andcompetent in every aspect and have often been helpful to accelerate theimplementation process.

However, there have been inconsistencies in the enforcement of the procurementrules and approval of contract awards, by the Procurement Division of the WorldBank due to the high turnover of their Specialists.

Furthermore, changes/amendments made to the procurement guidelines afterthe Development Credit was signed were enforced on our procurements,contrary to the documents referenced in the Credit Agreement. which toocontributed to the confusion in the implementation of the project. However, theseissues have since been resolved.

Lessons learned

Bank guidelines should be more consistent and flexible to make room foremerging issues that come as a result of project implementation.Also, approval to allow borrower to use funds should be treated as quickly aspossible to enable the government of Lesotho to meet time schedules

MAP SECTION

IBRD 23059

L E S O T H 0

EDUCATION SECTOR DEVELOPMENT PROJECT

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MAY 1991

Documents

World Bank Document...IMPLEMENTATION COMPLETION REPORT LESOTHO EDUCATION SECTOR DEVELOPMENT PROJECT (ESDP I) (CREDIT No. 2287-LSO) PREFACE This is the Implementation Completion Report