Document of The World Bank

Report No: 33169

IMPLEMENTATION COMPLETION REPORT(TF-22573 IDA-31280 TF-54182)

ON A

CREDIT

IN THE AMOUNT OF SDR 15.0 MILLION (US$ 20 MILLION EQUIVALENT)

TO THE REPUBLIC OF

THE GAMBIA

FOR A

THIRD EDUCATION SECTOR PROJECT

December 19, 2005

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CURRENCY EQUIVALENTS

(Exchange Rate Effective 1999)

Currency Unit = DalasiUS$ 1 = D10.607

FISCAL YEAR January 1- December 31

ABBREVIATIONS AND ACRONYMS

AfDB African Development Bank GroupANFED Adult Non Formal Education DepartmentANFEU Adult Non Formal Education UnitAPL Adaptable Project LendingBPMRU Book Production, Materials and Resources UnitCAS Country Assistance StrategyCCF Christian Children's FundDCA Development Credit AgreementDfID Department for International DevelopmentDOSE Department of State for EducationECDC Early Childhood Development and CareEFA Education For AllEMIS Education Management Information SystemFIOH Future In Our HandsGABECE Gambian Basic Education ExaminationGFSI Girl-Friendly School InitiativeGTTI Gambia Technical Training InstituteHTC Higher Teacher's CertificateIDA International Development AssociationISR Implementation Status ReportKPI Key Performance IndicatorMLA Monitoring Learning AchievementsNAT National Assessment TestNGO Non-Governmental OrganizationPAD Project Appraisal DocumentPCU Project Coordination UnitPDO Project Development ObjectivesPER Public Expenditure ReviewPHRD Policy and Human Resource Development FundPPF Project Preparation FacilityPSLCE Primary School Leaving Certificate ExaminationPSR Project Status ReportPTC Primary Teacher's CertificateRIFT Remedial Training for Female TeachersTVET Technical and Vocational Education and TrainingUNDP United Nations Development ProgramUNESCO United Nations Educational, Scientific and Cultural Organization

UNICEF United Nations Children's FundWAEC West Africa Examination CouncilWFP World Food Program

Vice President: Gobind T. NankaniCountry Director Madani M. TallSector Manager Alexandre V. Abrantes

Task Team Leader/Task Manager: Benoit Millot / Nathalie Lahire

GAMBIA, THEThird Education

CONTENTS

Page No.1. Project Data 12. Principal Performance Ratings 13. Assessment of Development Objective and Design, and of Quality at Entry 24. Achievement of Objective and Outputs 75. Major Factors Affecting Implementation and Outcome 186. Sustainability 197. Bank and Borrower Performance 208. Lessons Learned 229. Partner Comments 2310. Additional Information 23Annex 1. Key Performance Indicators/Log Frame Matrix 26Annex 2. Project Costs and Financing 28Annex 3. Economic Costs and Benefits 30Annex 4. Bank Inputs 37Annex 5. Ratings for Achievement of Objectives/Outputs of Components 40Annex 6. Ratings of Bank and Borrower Performance 41Annex 7. List of Supporting Documents 42Annex 8. Supplementary Table 43Annex 9. Borrower's evaluation report 45

Project ID: P035643 Project Name: Third EducationTeam Leader: Benoit Millot TL Unit: SASHDICR Type: Core ICR Report Date: December 16, 2005

1. Project DataName: Third Education L/C/TF Number: TF-22573; IDA-31280;

TF-54182Country/Department: THE GAMBIA Region: Africa Regional Office

Sector/subsector: Primary education (64%); Tertiary education (19%); Central government administration (9%); Secondary education (7%); Adult literacy/non-formal education (1%)

Theme: Education for all (P); Gender (P); Rural services and infrastructure (P); Improving labor markets (P); Education for the knowledge economy (S)

KEY DATES Original Revised/ActualPCD: 11/10/1997 Effective: 03/22/1999 03/22/1999

Appraisal: 05/21/1998 MTR: 05/01/2000 01/22/2001Approval: 09/10/1998 Closing: 04/30/2003 04/30/2005

Borrower/Implementing Agency: GOVT OF GAMBIA/MIN OF EDUCATIONOther Partners:

STAFF Current At AppraisalVice President: Gobind T. Nankani Jean-Louis SarbibCountry Director: Madani M. Tall Mahmod A. AyubSector Manager: Alexandre Abrantes Nicholas BurnettTeam Leader at ICR: Benoit Millot Rosemary BellewICR Primary Author: Nathalie Lahire

2. Principal Performance Ratings

(HS=Highly Satisfactory, S=Satisfactory, U=Unsatisfactory, HL=Highly Likely, L=Likely, UN=Unlikely, HUN=Highly Unlikely, HU=Highly Unsatisfactory, H=High, SU=Substantial, M=Modest, N=Negligible)

Outcome: S

Sustainability: UN

Institutional Development Impact: M

Bank Performance: S

Borrower Performance: U

QAG (if available) ICRQuality at Entry: S

Project at Risk at Any Time: YesDuring the last year of implementation, it became a project at risk resulting in an unsatisfactory rating on both PDO and IP . At project closing, it had once again significantly improved in terms of education management, which had become a major weakness in the last year. This led to a marginally satisfactory rating at project closing. Borrower performance is rated as marginally unsatisfactory.

3. Assessment of Development Objective and Design, and of Quality at Entry

3.1 Original Objective:Context and Background

The Republic of The Gambia on the west coast of Africa is located on two banks of the River Gambia. With a population of about 1.4 million, it is one of the least populous countries on the African continent. The Gambia is composed of seven administrative regions. From the education perspective, the country is divided into six regions, each containing a regional education office whose responsibility it is to coordinate education in the region. Results from the latest available household survey (1998) show that there are large disparities in poverty prevalence rates among the regions of The Gambia. The highest levels of extreme poverty are prevalent in rural areas, with around 50 percent in the Lower and Upper River Divisions. The North Bank and Central River Divisions has slightly lower rates (around 45 percent), and the rate in the Western Division is considerably less, at 20 percent (1998 NHPS data taken from the Poverty Reduction Strategy Paper (PRSP) 2002).

During the 1993-96 period, which coincided with preparation of the Third Education project (1995), the Gambian economy suffered from a number of adverse shocks that led to an economic slowdown and loss of per capita income. The main external and domestic shocks were: a) the reinforcement of border surveillance by Senegal in August 1993; b) the devaluation of the CFA franc in January 1994 and accompanying policy reforms in CFA franc zone countries; and c) the political uncertainty and security concerns that followed the July 1994 coup d’état. Following the presidential and legislative elections in 1997, the government began to restore economic stability and to normalize relations with donors. Based on data from the National Human Development Report (1997) and other sources, The Gambia’s indicators of human development were well below those of other countries with comparable levels of income. The development priorities outlined in the education sector policy framework (1988-2003) were, by 2003, to: a) increase the gross enrollment rate in grades 1-6 to 75 percent and the transition rate from grade 6-7 to 60 percent; b) lower the school entry age from 8 to 7; c) develop a broad-based curriculum for basic education (grades 1-9); d) improve the quality of learning in the basic cycle by training all unqualified teachers and increasing spending on learning materials; e) increase access to post-secondary vocational training and improve the coordination of its provision; f) increase opportunities for training out-of-school youth, school dropouts and adults. Accomplishments during the first phase of the education policy (covering the period of 1988-1996/97) include the following:

The gross enrollment ratio in grades 1-6 reached 70 percent (80 percent when the madrassas are included).Girls’ share of the total enrollment increased from 40 percent to 44 percent.The school entry age was lowered from 8 to 7.The transition rate from grade 6 to 7 increased from 35 percent to 70 percent. The 1,200 unqualified teachers in the system at the start of the period were upgraded to qualified teachers. Textbooks were made available to allow for a set of textbooks to share between two students in grades 1-5 and a set of textbooks was provided on a rental basis for all students in grades 6-9.

To finance the expansion, education’s share of the recurrent budget increased from 15 percent in 1990 to 19.4 percent during 1996-97 of total government expenditure (25.8 percent excluding debt service). The second half of the policy maintained the same priorities and built on the accomplishment of the first half while aiming at an enrollment target of 90 percent in basic education by 2005. It also pursued issues related to equity, effectiveness, efficiency, capacity building, and education management, as well as tackling higher

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education issues and sector financing.

Main issues included: a) high population growth, which makes it difficult for service provision to keep pace, b) limited public revenue and high debt service, which limits the public resources available for education, and c) high levels of poverty in rural areas, which affects the demand for education.

The government’s objectives and strategies were articulated in the following documents: a) the revised education policy 1988-2003 (updated from the original education policy approved in 1988); b) a draft master plan and investment program (1998-2005), which describes the priority programs, implementation schedules, responsibilities, and resource requirements; and c) the public expenditure review (1998), which lays out policy decisions regarding inter- and intrasectoral financing.

Objectives

The overall objective of the Government third education sector program is to improve access, quality, equity, and efficiency of the education program particularly for grades 1-9. As stated in the Development Credit Agreement (DCA), the six objectives of the project, which form the first phase of the borrower’s education sector program for the period 1998/99-2005/06 are to:

1. Increase gross enrollment in educational institutions, particularly basic education. 2. Improve the quality of education and of the educational attainments of those studying.3. Develop a program for early childhood development and care.4. Develop a strategy for the provision of vocational and technical education relevant to the demands of the job market.5. Facilitate private sector participation in education and training.6. Strengthen the capacity of education sector management institutions to carry out the program.

Alignment with Bank’s Country Assistance Strategy (CAS): the project’s objectives are in line with the CAS, which was presented to the Board at the same time as the project. The broad objective of the CAS was to achieve rapid, broad-based, and sustained increases in gross domestic product (GDP) per capita to reduce poverty. This would be achieved in collaboration with key development partners and nongovernmental organizations (NGOs) by improving social indicators and reducing poverty through direct investments in education. In education, the main objectives of the CAS were to: a) expand basic education parallel with specific efforts to promote female enrollment; b) improve sector management, monitoring, and evaluation; and c) improve equity, efficiency, and cost-effectiveness of public spending. During project implementation, another CAS (2003) was approved that focused on the first three pillars of the PRSP: a) improve public expenditure management; b) enhance the equity and quality of service delivery; and c) promote private sector-led growth.

The project, which was supposed to close on April 30, 2003, was extended twice. The two main reasons for the first extension were: a) noncompletion of the new education policy (2004-2015), which would only be finalized at the end of year 2003 and which would be a key input for the preparation of the second phase,and b) additional time needed to complete: the construction and reception of the remaining classrooms; the activities for vocational training and technical education component; continued staff training for sector management; and activities at the Gambia College (80 percent of the credit had been disbursed by March 2003). A second extension was sought primarily because of the sharp declines in the exchange rate of the Dalasi in 2003-2004. As a result, all major construction, both primary classrooms and postsecondary laboratories, were delayed while price adjustments were negotiated. Therefore, additional time for the completion of these activities was needed (89 percent of the credit had been disbursed by April

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2004).

3.2 Revised Objective:No revisions were made to the project objectives.

3.3 Original Components:The total program costs for Phase 1 were estimated at US$51.3 million-equivalent (US$20 million loan or SDR equivalent, with the European Union contributing EUR 5 million, Department for International Development (DFID) contributing 580,000 Pound Sterling, and the government contributing US$4.6 million). The activities described below were financed under IDA unless otherwise indicated in the main text.

The project comprises 9 components. They were taken from Annex 1 of the Project Appraisal Document (PAD).

Component 1: Access to Basic Education(Planned Cost: US$10.4 million-equivalent or 52 percent of total base)*This component sought to achieve a gross enrollment ratio of 7- to 15-year-olds in grades 1-9 of 77 percent (excluding madrassas) by the end of 2002, by:Extending double-shift and multigrade teaching;Constructing new facilities and rehabilitating of existing facilities;Establishing linkages between madrassa education and the formal system;Expanding opportunities for the disabled;Improving the supply and deployment of teachers;Providing school lunches (financed by the World Food Program)

Component 2: Girls’ Education(Planned Cost: US$0.4 million-equivalent or 2 percent of total base cost)This component intended to increase girls’ enrollment and retention in grades 1-12 through:A scholarship scheme and flexible fee schedules;Development of a supportive learning environment;A community and teacher mobilization program;An increase in the proportion of female teachers.

Component 3: Basic Education Quality(Planned Cost: US$2.2 million-equivalent or 11 percent of total base cost)This component aimed to improve the quality of basic education and its relevance to the sociocultural and economic needs of the country by:Reforming the curriculum for grades 1-9;Ensuring that each child has access to a complete set of textbooks for each grade;Providing an adequate supply of teaching and learning materials that match the curriculum;Reorganizing the production capacity and potential of Book Production and Materials Resource Unit (BPMRU);Revising the system of assessment and examination;Enhancing monitoring and evaluation capacity;Expanding the provision of Inservice Training (INSET); Expanding the coverage of guidance and counseling and school library servicesReintroducing school broadcasting services.

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Component 4: Early Childhood Development and Care(Planned Cost: US$ 0.0 million-equivalent or 0 percent of total base cost)This component sought to ensure that the quality of Early Childhood Development and Care (ECDC) is enhanced and that the number of children attending preschool, particularly in rural communities, is increased by:Reviewing operational policy guidelines offering training for ECDC providers;Promoting community-based and -managed programs.(This component was implemented by UNICEF).

Component 5: Secondary Education(Planned Cost: US$ 1.0 million-equivalent or 5 percent of total base cost)This component aimed to increase the gross enrollment in grades 10-12 for those ages 16-18 years, and improve the quality of senior secondary education by:Extending double-shift teaching;Offering scholarship incentives for girls and constructing new facilities;Increasing the number of qualified and trained Gambian teachers;Introducing computer technology and literacy programs.

Component 6: Vocational and Technical Education(Planned Cost: US$ 0.2 million-equivalent or 1 percent of total base cost)This component sought to increase access to post-school vocational education and technical education in The Gambia by:Expanding skills training centers in rural areas;Upgrading the facilities at the Gambia Technical Training Institute and strengthening capacity.

Component 7: University Education(Planned Cost: US$ 0.6 million equivalent or 3 percent of total base cost)This component intended to establish a University of The Gambia with capacity for about 2,000 students in identified priority programs. The strategy provides for gradual development of the three existing tertiary institutions—Gambia College, Gambia Technical Training Institute, and Management Development Institute—to offer degree-level courses, while maintaining the courses and programs of their earlier mandates.

Component 8: Adult Education/Functional Literacy Program(Planned Cost: US$ 0.2 million-equivalent or 1 percent of total base cost)This component aimed to increase the adult literacy rate by expanding the provision of literacy facilities through a strategy of government and private sector partnership.

Component 9: Capacity Building for Sector Management(Planned Cost: US$ 1.6 million-equivalent or 9 percent of total base cost)This component sought to enhance the performance of the education sector by:Restructuring the Department of State for Education (DOSE);Implementing an appraisal system for all staff;Strengthening the capacity of regional education offices;Establishing a comprehensive management and information system;Strengthening the project’s Coordination Unit.

* Total base refers to the overall credit amount (US$20 million).

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3.4 Revised Components:None of the components were revised.

3.5 Quality at Entry:Overall the quality at entry at the ICR was Satisfactory

The preparation process was exemplary. Despite some lack of ownership at the beginning, project preparation revolved around a consultative process between the government and its partners. The project was the first adaptable program lending (APL) in the education sector within the Africa region. This lending instrument was chosen because:

a) The program is sectorwide in scope, encompassing all levels of education, with clear priority given to basic education and to certain priority programs within the other levels of education. b) It contains a mix of well-defined overall objectives, policies, and strategies but requires further refinements of these, as well as additional conceptual work, planning, programming, and budgeting (most notably in Technical and Vocational Education Training (TVET) and higher education. c) Medium- and long-term public expenditure plans have been estimated taking into account the macroeconomic framework and the PFP agreements with the International Monetary Fund.

Elements that were missing included: a) strong donor coordination by the DOSE; b) strong management, monitoring, and evaluation capacity; c) common implementation arrangements across development partners; and d) clearly defined support by all other development partners due in part to the limited number of bilateral and multilateral partners interested in supporting the sector. Consequently, these shortcomings were addressed during project preparation.

The two previous education projects concentrated on increasing access to primary education. In addition to maintaining this objective, the project supported the government policy to provide nine years of basic education. The choice of the instrument was therefore appropriate. The preparation process started in 1995. The DOSE began to define the third education sector program in September 1995. The World Bank and the government collaborated to finalize the policy framework and the master plan. Based on the Bank’s request, the DOSE officially appointed a coordinator and a core team for the preparation work. Technical expertise was provided in the design of the educational program. The program was developed through both analytical and consultative processes involving key stakeholders: teachers, headmasters, principals, parents, and development partners. The analyses underpinning the identification of issues, choice of strategies, and objectives were contained in household surveys, preparation studies, and other sector work carried out. PPF was in the amount of US$600,000. The project’s development goals as stated in the DCA were relevant and in alignment with the government’s national education policy. The project design was appropriate but complex and ambitious in terms of targets and large range of activities.

The credit was approved on September 10, 1998; signed on September 22, 1998; and effective on March 22, 1999. The first disbursement was made in April 1999. As indicated in the PAD, around 60 percent of project expenditures were scheduled for the first two years of the project. This was unrealistic, given the large number of classrooms that had to be constructed and the limited capacity of the DOSE/Project Coordination Unit (PCU), Gamworks (construction management entity) and the two NGOs in charge of school construction.

Monitoring and Evaluation of Project Development Objectives (PDOs) and Key Performance Indicators (KPIs)There are inconsistencies between the PAD (Annex 1) and the DCA with regard to project objectives and

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their connection with the nine project components (see Annex 8, table 1). The fact that the PDOs in the PAD were categorized under key performance indicators complicated the monitoring and evaluation, with the result that most Project Status Reports (PSRs) retained these development objectives as indicators. Other sources of information regarding project objectives are the PSR and the Implementation Status Reports (ISRs). PSR 1 through 7 proposed as project objectives: supporting implementation of the second half of the government’s Education Sector Policy Framework (1988-2005) and its accompanying investment program as stated under “Program purpose and development objectives” (PAD, p.3). PSR 8 until 14 used the objectives from the DCA. The “annual monitoring indicators” (16) as listed in Annex 4 of the PAD are identical to the ones in the DCA, but Annex 4 also comprises the triggers to move from phase 1 to phase 2. The components are listed in the PAD under program purpose and development objectives, Annex 1 and Annex 2 (description of activities for the two phases), which have a few discrepencies with each other but overall remain comprehensive.

4. Achievement of Objective and Outputs

4.1 Outcome/achievement of objective:The project development outcomes outlined in the Development Credit Agreement (DCA) were used to determine whether the project had achieved its objectives.

The project is rated Marginally Satisfactory on achievement of its objectives based on the outcomes described below.

Objective: Increased access to education at all levels of education from grade 1-12 and particularly for basic education as measured by increased enrollment rates, with dramatic surges in girls’ participation.

Outcome: Over the period 1998-2005, project interventions contributed to an increase in gross enrollment in lower basic education (grades 1-6) from 73 percent in 1998-99 (80 percent and 67 percent for boys and girls, respectively), to 76 percent in 2004-05 (73 percent and 79 percent for boys and girls, respectively). In upper basic (grades 7-9), the gross enrollment rate went from 40 percent overall in 1998-99 (48 percent and 32 percent for boys and girls, respectively) to 65 percent in 2004-05 (66 percent and 65 percent for boys and girls, respectively). The cohort primary completion rate in 2003 rose to 80 percent. At the senior secondary level, gross enrollment rose from 16 percent in 1998-99 (21 percent and 11 percent for boys and girls, respectively) to 28 percent in 2004-05 (33 percent and 24 percent for boys and girls respectively). Despite a slow start, the new classrooms have helped The Gambia to approach its goal toward universal primary education.

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Table: Enrollment rates from 1991-2005 disaggregated by level and gender

0

0.1

0.2

0.3

0.4

0.5

0.6

0.7

0.8

0.9

1991/9

2

1992

/93

1993/9

4

1994

/95

1995/9

6

1996

/97

1997

/98

1998

/99

1999/2

000200

0/01

2001

/02

2002/0

3

2003

/04 a/

2004/0

5 b/

GER

Grade 1 to 6

Female

Male

Grade 7 to 9

Female

Male

Grade 1 to 9

Female

Male

Grade 10 to 12

Female

Male

I_____project cycle_______I

Objective: Development of an Early Childhood Development and Care program as measured by the realization of an ECDC strategy, and the recent formulation of a national early child development policy framework using a multisectoral approach including heath, nutrition, and agriculture.

Outcome: Funded by UNICEF, an ECDC strategy was developed in 2004. A national early child development policy framework has recently been drafted by a multisectoral working group comprising government officials responsible for heath, nutrition, and agriculture, supported by an international consultant. The framework is awaiting the approval of the cabinet.

Objective: Development of a strategy for the provision of vocational and technical education as measured by the cabinet’s enactment of the policy.

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Outcome: After significant delays, a TVET policy was developed and approved by the cabinet in 2003. Although a tracer study of the Gambia Technical Training Institute had been planned under the project, this activity has not been completed. Terms of Reference have been provided and found acceptable to the Bank. The study is being implemented under the Japanese-financed PHRD grant.

Objective: Strengthened private sector participation in education and training as measured by the management mechanism used at the secondary level.

Outcome: The Gambia has established strong public-private partnerships in secondary education. More than 90 percent of all senior secondary schools are managed by the private sector ,with more than 50 percent of them receiving financing from the government (grant-aided schools). Most new secondary schools that are not purely private are initially built and managed by the government, but within the first two to three years their management is handed over to an independent board. The TVET policy envisages full participation of the private sector in all aspects of the training process.

Objective: Improved inputs for the strengthening of education quality as measured by improved textbook/student ratios in basic education; revision of the curriculum for grades 1-4; availability of books; and an increase in qualified teachers in the system.

Outcome: Although the project was successful in strengthening the quality inputs, its contribution to the improvement of student academic outcomes could not be measured. Schools benefited from an increase in the supply of textbooks, and The Gambia College profited from newly developed distance learning materials. A new curriculum for grades 1- 4 has been developed, and teachers were trained. The biggest challenge in The Gambia is to attract qualified teachers and retain them in the system, especially given their very low salaries. Nevertheless, Gambia College significantly enhanced its intake of Primary Teachers’ Certificate (PTC) and Higher Teachers’ Certificate (HTC) over the past five years, resulting in an increase of 1,024 qualified PTC teachers and 1,034 HTC in the system. An area of concern is the poor academic standing of new PTC’s entrants, with many students falling in the 30-40 percent achievement range. In terms of academic outcomes, the standardized National Assessment Test (NAT) shows that in all core subjects including Math, English, and Science, a maximum of 10 percent of grade 3 and 5 students reached the mastery level of 73 percent. Results from UNESCO’S Monitoring Learning Achievements (MLA, 2000) demonstrate that 46 percent of students reached the passing minimum mark (40 percent) in the core subjects. The Gambian Basic Education Examination (GABECE), which is taken at the end of 9th grade, yields similar outcomes.

Objective: Strengthen the capacity of the education sector management institutions to carry out the program.

Outcome: Weakened education management , as measured by the constant reorganization of the DOSE and high mobility and attrition of staff, hampered the efficiency of the sector over the project cycle DOSE was not able to retain well-trained and qualified staff, including key personnel from DOSE itself and from PCU. This had serious implications for the project that resulted in unsatisfactory performance during the last year of implementation. During the last year of the project, DOSE was reorganized completely, and a new Secretary of State for Education was appointed. At the time this ICR was written, strong leadership in the senior management was in evidence, and The Gambia is in a better position to move forward with the next education project.

4.2 Outputs by components:

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The components described in Annex 1 (PAD) were used to determine whether the outputs by components were achieved.

Component 1: Access to Basic EducationICR rating: SatisfactoryDespite delays in credit effectiveness, this component exceeded the targets set at appraisal. The majority of the 1,015 classrooms were constructed by Gamworks. Two NGOs, the Christian Children’s Fund (CCF) and Future in our Hands (FIOH), as well as PCU were also involved in construction of classrooms, although in a lesser capacity given their limitations.

Implementation agency Share of classrooms built

GamWorks 72%Christian Children’s Fund (CCF) 10%Future in our Hands 7 %PCU 11%

1.1 Extension of double-shift and multigrade teachingBetween 1998 and 2001, the proportion of double-shift classes in the upper basic cycle increased from 30 to 33 percent. At project closing, it had again stabilized at 30 percent as a result of the increased recruitment of qualified teachers. The target of 40 percent in the PAD (Annex 1) was not achieved. At the lower basic level, the target was met. The proportion of double-shift classes increased from 18 percent in 1998 to 25 percent in 2005, reaching the target set in the PAD. Multigrade teaching has been expanded and is being practiced in a total of 87 schools, surpassing the target of 85 schools. Average student teacher ratios have increased from 33:1 in 1998-99 to 38:1 in 2005 at the lower basic cycle (grades 1-6). Consequently, the targets of 40:1 (DCA) and 45:1 (PAD) were not met. At the upper basic cycle (grades 7-9), the ratios decreased from 36:1 in 1998-99 to 28:1 in 2005. The target of 36:1 in the PAD has not been met. The reason for the reduction at the upper basic level is the increased number of teachers, which has progressed dramatically from 967 teachers in 1998 to 2,337 in the system in 2005.

1.2. New construction and rehabilitation of existing facilitiesSince project inception, approximately 1,015 classrooms were completed, resulting in an average annual construction volume of 170 classrooms. In early 2005, an IDA consultant assessed the quality of the classrooms constructed during the first phase. An evaluation of a sample of 24 schools visited rated the quality of classroom construction as generally fair to poor. In addition, there were some problems with the Brufut school site where the land ownership was in dispute. The quality and progress monitoring by the DOSE regional construction monitors was not effective in informing management promptly about delays, defects, and future problems or in taking corrective measures accordingly. In cases where classrooms were constructed under framework agreements with NGOs (CCF and FIOH), no payments were withheld, leaving no leverage to enforce corrective action if defects occurred during the maintenance period.

Some cases of very good quality were found for classroom blocks constructed by the NGO Future in our Hands (FIOH). The layout, in particular for the office store, and some construction details indicated a good awareness and use of local skills and materials. Attention had also been given to user training for minor maintenance and repairs. The downside of this approach was the NGO’s relatively limited capacity in terms of the classrooms it could construct per year.

1.3 Establishment of linkages between madrassa education and the formal system

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At project closing, 138 madrassas (lower basic schools) were registered under the secretariat located within the Basic Education Directorate. A registered madrassa is being defined as following the official curriculum. A total of 100 English teachers were trained under the credit and posted into registered madrassas, meeting the target set.

1.4 Expansion of opportunities for the disabledAlthough the project did not finance any activities under this subcomponent, the Bank team, in alignment with the government’s national policy, supported the inclusion of students with disabilities in the regular classroom to the greatest extent possible. In 50 lower and upper basic schools, school heads and deputies (total of two per school) received training financed by UNICEF. There was, however, a lack of school materials available to meet the immediate needs of students with disabilities.

1.5 Improvement in the supply and deployment of teachersTo address the acute shortage of qualified teachers, reduce dependence on untrained teachers, and cut costs, the two-year college-based Primary Teaching Certificate program was reduced in 1999 to a one-year in-college and two-year school-based training. Although a target was set in the DCA and in the PAD for increasing the capacity of Gambia College, the inconsistencies mentioned above are apparent here, as well.

Source IndicatorsDCA Increase intake from 120 in

1997/98 to 300 by 2001/02 PAD (Annex 1) Average of 250 new PTC and

120 new HTC PAD (trigger to move to phase 2) 300 PTC and 150 HTC

annually

Gambia College did not regularly reach the intake targets established under the project. The College recruited only 170 PTCs in 2003/04, which was 130 short of the 300 agreed to in the DCA, and less than half of the projected 370 new entrants in the PAD. The situation was due to the inadequate number of unqualified PTC applicants and to insufficient funding to meet the cost of student stipends. The target of increasing female recruitment at Gambia College’s School of Education to 40 percent of total intake was achieved. The planned 60 days’ remedial training to be offered to 100 female teachers though the Remedial Training for Female Teachers (RIFT) program was also achieved, reaching 42 percent at the PTC level and 20 percent at the HTC level. However, it was observed that RIFT had been discontinued after the project closed because of a lack of funding. The remedial training seems therefore not sustainable.

In order to accommodate the rising student intake, the project supported the construction and equipment of staff offices, eight 8 lecture rooms, and a computer lab, as well as expansion of the library. The project financed the revision of the distance education materials, which was executed by the Institute of Education in London. Gambia College staff were trained in the use of the multigrade and double-shift modules.

1.6. Provision of school lunchesThis subcomponent was financed under the World Food Program (WFP). The first phase of the project aimed at providing school meals to about 60,000 children in 268 schools. Despite efforts to increase the number of schools with canteens or school farms and gardens, problems arose for two reasons. First, the level of accountability and transparency in the management of school canteens was called into question. Second, there were times when beneficiaries did not receive the expected help from the communities. With the support of WFP, 127,993 students in 339 schools had access to school feeding. The foods included rice,

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iodized salt, vegetable oil, and pulses. The program, which covered all the lower basic schools, is expected to continue until 2007, after which WFP has to submit a new proposal to FAO. Sustainability is therefore not certain.

Component 2: Girls’ EducationICR Rating: SatisfactoryThe project was successful in increasing the enrollment and retention and of girls in schools. Under the Girl-Friendly School Initiative (GFSI), 50 schools were designated girl-friendly schools providing resources on condition that the community and school collaborate to assure the attendance of more girls. RIFT at the Gambia College helped attract and keep female trainee-teachers in the College, significantly increasing the number of female teachers at primary, and modestly increasing the number of female teachers in secondary schools. The tremendous increase in girls’ enrollment is primarily attributed to positive nondiscrimination initiatives, and strategies implemented by the girls’ education unit of DOSE, including a scholarship scheme for girls, training for teachers, advocacy and social mobilization, and community empowerment activities. A sexual harassment policy has also been enacted.

Analysis by Subcomponent

2.1. A scholarship scheme and flexible fee schedulesAt the secondary level, a scholarship trust fund was set up to encourage the retention of girls by lowering the direct costs to parents. The project has been successful in implementing and operationalizing the girls’ education scholarship scheme since 2000. The latest data (2004) indicate that 13,859 girls in junior secondary schools (upper basic level) and 2,624 girls in senior secondary schools received scholarships. This resulted in a sharp increase in the girls’ share of enrollment in upper basic and secondary school in education regions 4, 5, and 6. At the upper basic level, they went respectively from 32, 34, and 32 percent in 1998-99 to 45, 46, and 45 percent in 2004-05. At the senior secondary level, they rose from 25, 23, and 33 percent in 1998-99 to 44, 36, and 38 percent in 2004-05. The direct impact of these initiatives was felt in the girls’ enrollment in both upper basic and senior secondary, which rose from 32 percent in 1998-99 to 65 percent in 2004-05 at the upper basic level and 11 percent in 1998-99 to 24 percent in 2004-05 at the senior secondary level. Although these results are very encouraging, concerns arise when noting the decrease in boys’ enrollment since 2001 at the lower basic level. One possible that can be made with regard to this particular outcome is that some parents might choose to send only one child to school. Prior to the scholarship scheme, boys were favored; however, now it seems more rational to parents to send girls only. It will be important to examine this issue during the next phase.

2.2. The development of a supportive learning environmentSince 1997, textbooks have been revised to discard gender-biased content and to include more gender-aware material. Anti-sexual harassment policies have been developed to prevent and sanction the mistreatment and exploitation of girls in the school environment. An awareness manual was produced to educate teachers, students, school officials, and communities about the consequences of such practices on girls’ performance and attainment. The Girl-Friendly School Initiative has also helped in this regard.

2.3. A community and teacher sensitization programThe “Big Bang” campaign targeted parents and communities in the rural areas where girls’ enrollment rates were lowest, and sensitized communities with regard to the importance of educating girls. An annual career day was organized to encourage girls to emulate professional adult women role models. Mothers’ clubs are an integral part of the GFSI, and their members help all girls attend and remain in school. The clubs also ensured that there was active community participation in the management of village schools.

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2.4. An increase in the proportion of female teachers in schoolsIn 1998-99, fewer than 50 women were admitted into the Primary Teacher Certificate program; by 2004-05, this number had increased to 157. The number of female entrants to the Higher Teacher certificate program was even lower, with 20 in 1998-99; by 2004-05, it had reached 54. This was partly possible thanks to the RIFT, in which female candidates with lower marks at the college entrance examination must participate after admission to the college in order to be brought up to a similar performance level as their counterparts. Although they come in with lower marks, they are given the same exit test.

Component 3: Quality and Relevance of Basic EducationICR Rating: Marginally satisfactoryThe project was successful in many subcomponents but the impact on improving the quality of learning can not measured at this point given that progress can only be evaluated over a longer period. The project was successful in developing a thematic curriculum for grades 1-4; providing a free set of textbooks for each student in grades 1-6 as well as some learning materials and developing a standardized national assessment test and learning achievement targets.Thus, this component is rated marginally satisfactory.

Analysis by Subcomponent

3.1. Reforming the curriculum for grades 1-9This subcomponent has only been partly achieved. The revision of curricula for grades 1-4 has been completed, and grade 5 is in the process of being revised. The revision of textbooks and syllabuses for all subjects for these grades, as well as the training of teachers to use the revised curriculum, has been fulfilled. The coordinator of the subject area is the main person responsible for the curriculum design, but a panel composed of senior teachers is recruited on a contract basis to provide input on content and methodology. Capacity has been seriously lacking in curriculum studies. Although the IDA team recommended the provision of technical assistance, it has never been undertaken.

3.2. Ensuring that each child has access to a complete set of textbooksAt the end of the project, the vast majority of grade 1-6 students had a full set of textbooks. In terms of reprinting of textbooks and teacher guides, the project financed the reprinting of English, Mathematics, Science, and Social and Environmental Studies for grades 1-9 as well as student books for Islamic studies for grades 3-4. Overall, 1,002,356 textbooks and teacher guides were purchased and delivered. Although the outcomes are positive, significant delays hampered the effective delivery of some of these materials. Lot III, which included textbooks for grade 8, was delayed in 2000 as a result of the need for additional information that would clarify a discrepancy between the recorded and read-out information at the opening session. The issues were resolved by the PCU’s Project Manager. The book rental scheme for grades 7-9 has seen many difficulties, especially at the beginning of the project. In 2002, plans included the abolishment of the scheme, and supervision reports noted that DOSE had taken the initiative to abolish them because it excluded more and more students because of the inability or willingness of parents to pay an annual rental fee of D150 (approximately US$5.00). The rental recovery rates varied across regions and by year. The ICR mission found out that the rental scheme had been continued for upper basic, and recovery rates had improved significantly, primarily because of the girl’s scholarship scheme.

Table: Recovery rate of textbook rental fees throughout the project cycle and by region

Region 1998/99 1999/00 2000/01 2001/02 2002/03 2003/041 Banjul 92% 107% 42% 43% 100% 50.2%

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2 Lower River

68% 84% 63% 55% 67% 25.9%

3 Central River

34% 30% 22% 79% 100% 100%

4 North Bank

83% 46% 8% 100% 100% 100%

5 Upper River

95% 133% 21% 100% 100% 100%

6 Western 14% 13% 4% 100% 100% 100%Total 67% 73% 37% 69% 93% 60%

3.3 Providing an adequate supply of teaching/learning materialsIn addition to the supply of textbooks purchased under the credit, a large number of library corner books were financed under the project, including 357 different titles.

3.4 Reorganizing the production capacity and potential of the Book Production and Materials Resource Unit All activities related to the BPMRU equipment and training of staff have been executed. At the preparation stage, discussions were held with regard to the possibility of reviewing BPMRU status, with the intention of privatizing its operations or having it function more as a commercial enterprise. Its current role is to print support materials, such as records forms, and distribute imported textbooks to schools. It is also in charge of managing the textbook recovery revolving fund. BPMRU has recently merged with the National Printing Cooperation, enabling the new entity to increase its printing capacity. Under the project, training has been financed in the areas of copyediting of support materials, machine maintenance, and desktop publishing.

3.5 Revising the system of assessment and examinationsSignificant progress was made in this subcomponent. In order to reduce the cost of examinations, the grade 6 school leaving certification exam (PSLCE) was phased out, and the Gambia Basic Education Cycle Examination (GABECE), which is taken at the end of grade 9, was kept as the exit exam from the basic cycle. The phasing out of the PSLCE was delayed by a year because of delays in construction of upper basic classrooms. This uninterrupted progression from grade 6 to 7 will have serious implications for the future capacity of the system if the transition rates are to be maintained. (Note: “automatic promotion” implies that all students pass regardless of their grades). The National Assessment Test (NAT) was developed and introduced in grades 3 and 5. Carried out by the West Africa Examination Council (WAEC), it measures learning achievements in Mathematics, English, Social and Environmental Studies, and General Science. Learning achievement targets were developed, and teachers were trained in using these targets. Reports show that in all subjects, at least 90 percent of students did not reach the mastery level of 73 percent on all items. IDA financed an international consultant to evaluate this subcomponent during the last year of implementation.

The reliability and validity of the test was seriously called into question. As a conclusion of the consultancy, it was noted that the tests administered did not fully meet the basic purpose of an assessment, which is to provide policy-makers and decision-makers with relevant and reliable information about the actual state of the education system, its achievements, and its problems. The staff in the Examination Unit lacks the capacity to perform their job adequately. The next phase should seriously address this issue.

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Component 4: Early Childhood Development and Care ICR Rating: SatisfactoryAn ECDC strategy has been developed and approximately 300 facilitators have been trained by the Gambia College. This certificate training was offered during the summer over a period of three years, with three cohorts being trained during one summer. Most of these activities were financed by UNICEF with support from UNESCO. Partnerships between ECDC providers were strengthened through the creation of a multisectoral working group chaired by the Department of Community Development with participation from DOSE. The multisectoral working group drafted a national early child development policy framework that aims to ensure that ECDC programs follow an integrated approach, in line with the holistic development of children. The group creates partnerships between government and other partners (families, civil society organizations, and so forth) in order to expand and improve ECDC provision and secure adequate financial provision for the implementation of the policy.

Component 5: Secondary EducationICR Rating: SatisfactoryThe project financed the creation of 9 new public secondary schools, leading to a total of 35 secondary schools in The Gambia, which exceeded the target of 30 by 2002. The enrollment fees have been reduced from 150 to 100 Dalasis per term. The increase in the number of schools and the reduction of fees led to higher enrollments, especially of girls (see Component 2). The gross enrollment rate in senior secondary education rose from 16 percent in 1998-99 to 28 percent in 2004-05 reaching the target of 28 percent set in the PAD. The transition rate from basic to secondary education increased to 52 percent surpassing the target by 2 percent. Computer programs have been introduced in all government schools, meeting the target set in the DCA and PAD. An attempt to supply Gambian secondary schools with 500 computers and accessories was initiated in 2002, but because there were some problems with procurement, the Bank did not finance the computers as planned. Under the project, 126 students (111 male and 15 female) completed the Bachelor of Education program offered at the university, and the majority of them have been recruited as secondary teachers. Currently, a new cohort of 55 students (54 male and 1 female) enrolled in the program. Given the large gender disparity, it will be important to recruit more female students into the program in future years.

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Component 6: Technical and Vocational EducationICR Rating: Marginally SatisfactoryThe primary objective of this component was the development of a comprehensive training policy for the country although some civil works had been planned under the project (eight classrooms, three laboratories, and one computer laboratory). The policy was developed and approved although there were significant delays. These in turn led to the cancellation of the planned civil works, which were contingent upon the approval of the policy. The tracer study of TVET graduates planned under the project was not undertaken during the 1999-2005 period, but will be carried out under the PHRD grant before the appraisal of the next project.

Component 7: University EducationICR rating: SatisfactoryThe bill for establishing the University of The Gambia was enacted into law in March 1999, and the university began operations in October 1999. The main activity planned under the credit, the corporate or strategic plan, was begun only in December 2004 after delays in the selection of the consultant. Three months before closing date, a strategic plan was drafted in a cooperative homegrown process with technical assistance provided by the IDA team. At the ICR stage, the strategic and financial plans were completed, and plans are in place to share them with all major stakeholders. Under the project, 120 reference books have been purchased for the university library.

Component 8: Nonformal EducationICR rating: UnsatisfactoryDuring the first phase, the Adult Non Formal Education Department (ANFED) was redesigned as a smaller Adult Non Formal Education Unit (ANFEU) within the Directorate of Basic Education. Since 1999, most of the staff members have been redeployed (reaching an all-time low in 2003, when only one part-time employee was following up on NFE at the central level), resulting in the need to rebuild entirely the unit at the central level. Currently, it still needs more human resources and capacity building. The IDA project financed US$0.2 million for this component; however, because of redeployment and the restructuring of the ANFED, this component was delayed and the activities planned did not take place. This is happening within the context of a subsector where there is little donor interest and where the ongoing program has not been able to address the literacy challenges. In 2003, the DOSE, with some World Bank support, began designing a new nonformal education component to be started in the second phase of the project.

Component 9: Education Sector ManagementICR rating: Marginally SatisfactoryMost of the activities planned under the project have been implemented, although the results are mixed. Uneven progress toward attaining outcomes during project implementation, and serious deterioration in education management and data availability during the last year of the project, led to an Unsatisfactory rating in the last IDA mission report prior to project closing. During the last month of implementation and at the ICR stage, the situation had improved.

9.1 Restructuring the Department of State for EducationThe DOSE was restructured throughout the project, and two years into implementation the Bank team observed improved capacity. During project preparation, overall weaknesses were identified in management, planning, and monitoring and evaluation. The project aimed to address these through the strengthening of planning, monitoring, evaluation, and management capacities. In addition, the project aimed to address capacity-building shortcomings through a comprehensive training program targeting

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organization, leadership and management, financial resources, human resources, material resources, and practices. Under the project, 53 staff from the department were trained: 1 Ph.D, 11 Masters of Education, 16 Masters of Arts, 2 Bachelors of Education, 9 Bachelors of Philosophy, 12 Bachelors of Science, 1 Higher National Diploma recipient, and 1 technician. Attrition of staff sent for training was minimal.

9.2. Implementing an appraisal system for all staffA staff performance appraisal system was designed, and DOSE staff at the regional offices received training in the preparation for effective operation. A nationwide staff performance appraisal system (SPAS) was introduced in 2002 to improve education service productivity and efficiency. The objectives of this system were to enable policy makers and managers to make well-informed decisions on how to upgrade the education personnel effectively, especially teachers and head teachers. It was tried out for one year but discontinued because of logistical and financial reasons.

9.3. Strengthening the capacity of regional education officesAt mid-term review, all directorates at DOSE and regional offices had been connected to the Internet. Though this activity was highly valued, the frequent power shortages were a problem. The problem was not addressed during project implementation, although the EFA-Fast Track Initiative Catalytic Fund financed the installation of generators at DOSE and in the regional offices in 2005. The regional education offices have been restructured into regional directorates to ensure proper coordination of the sector program at the regional level. Each regional directorate comprises a regional director assisted by a principal education officer, a senior education officer, a Standard and Quality Assurance (SQAD) officer, a regional training officer, a school feeding program coordinator, a madrassa focal point, a construction monitor and, more recently, a cluster monitor responsible for monitoring education activities. Despite their new status, the regional directorates do not have their own budgets to allow some level of expenditure control and output monitoring. Major shortcomings are the lack of proper school monitoring and supervision by the regional directorate. Each director has a master’s degree, in addition to which the vast majority of current regional directors and heads of directorates in DOSE received a three-week training course at Harvard University in education management.

9.4. Establishing a comprehensive management information systemBy mid-2001, the Education Management Information System (EMIS) was set up, fully staffed, and operational, with technical assistance provided by DfID. Statistical data were available, and errors were addressed in a timely fashion. In an evaluation carried out by DfID, concerns were expressed that the achievements accomplished by the project in the areas of EMIS and IT would not be sustainable in the medium to long term because of problems related to management, finance, and staffing. These concerns turned out to be valid after the DfID funding ran out. In the last two years of project implementation, data collection was incomplete, and at the closing of the project, valid data were not available after 2002, although the data had been collected. At the ICR stage, a complete headcount of students and personnel had been completed and was being entered in the system. Despite these improvements, the problems of sustainability still remain.

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4.3 Net Present Value/Economic rate of return:see Annex 3

4.4 Financial rate of return:see Annex 3

4.5 Institutional development impact:Modest The project has contributed to institutional development in the education sector, though some of the achievements are fragile. Fifty-three fellowships financed under the project have enhanced capacity in the sector, ranging from bachelor degrees up to Ph.D. degrees in fields such as financial management, construction, planning, educational management and administration, economic policy and management, and curriculum development. Of the 53 fellowships, 3 are still ongoing and 3 retired. The remaining 47 returned to the DOSE or are involved in teaching at the secondary or higher education levels. This means more than 88 percent of all trainees have returned to the sector, a rate rarely found in other IDA projects. Training has been provided to senior management in education management, procurement, financial management, and multigrade teaching. Study tours to neighboring countries have also taken place. Throughout the project, DOSE was unable to retain key managers in both the Department and the PCU. This had serious implications for the project, resulting in a decline in implementation progress in the last year before project closing. In the last few months of implementation, DOSE had a new Secretary of State, who reorganized the Department and allowed The Gambia to have the readiness to move forward with the next education project. Curriculum revision has been lengthy, with delays at several points related to both the availability of funds and the changing organizational structures, with curriculum moving between DOSE and Gambia College, with or without in-service training, at different points during project implementation. At the ICR stage, it was once again merged with the Inservice Training Unit directly under the DOSE.

5. Major Factors Affecting Implementation and Outcome

5.1 Factors outside the control of government or implementing agency:Dispute on sitesConstruction of the 12 classrooms and 2 toilet blocks in Brufut was delayed because the site was in dispute.

Costs of construction materialsDuring the project implementation, the Dalasi-dollar exchange rate fluctuated significantly, leading to a devaluation of the Dalasi against the dollar (at project inception the exchange rate was US1$ = D10 and at the completion, US$1 = D28). As a result, the price of construction materials increased dramatically; consequently, price adjustments had to be made resulting in delays in construction completion.

5.2 Factors generally subject to government control:Decrease in the share of the government budget slated for educationAlthough education commands the largest budget in all the Departments of State in The Gambia, recurrent expenditures in education have continued to decrease since the inception of the project. Government expenditures in education as a share of recurrent expenditures (including debt service) decreased from 17 percent in 1999 to 10 percent in 2004. Recent figures show that it rose again in 2005.

Instability of DOSE senior management staff and PCU staffStaff attrition and the movement of heads of directorates and units destabilized the rhythm of work in the

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DOSE. In the last two years of project implementation, the project had six heads of the Planning Directorate and three heads of the Human Resources Department. Some directorates (Basic Education and Secondary Education) were without a head for some portion of the project. With the high mobility and reshuffling of senior managers in DOSE, it seems unlikely that senior managers heading the units had the appropriate training and experience. This had a negative impact on project implementation at the end of the project cycle. The PCU, too, was unable to attract and keep qualified personnel, in large part because of the growing gap between private sector salaries and those offered at PCU.

Shift of priority from planned civil works activities.The most significant change was in the construction program for GTTI, which was contingent upon the approval of the TVET policy. Given its significant delay, the activities planned had to be canceled one year before the closing date given that 93 percent of the credit was already disbursed. Two reallocations took place throughout the project cycle, adding unallocated funds for classroom construction at the basic level and surpassing the target of 942 classrooms by 8 percent. This decision can be assessed as appropriate and allows The Gambia to be on track to reach EFA on time.

Reliability and availability of dataReliability and availability of data were issues, making it difficult for the Bank’s team to have an accurate picture of the project outcomes.

The shift of the curriculum and in-service units from the department to the Gambia CollegeAt the start of the project, the curriculum and in-service training units were separately moved to the Gambia College. This was of concern because of the important role that the DOSE directorates played in the development of curricula. However, since the DOSE preferred this arrangement, IDA agreed that the government would enter in a contractual relationship with the college to provide these services, while the DOSE would retain management control. Both of these units have been grossly understaffed and underfunded, hampering significantly their capacity to deliver. At the end of the project, the curriculum and in-service units were merged again into one unit (CREDIT) and were relocated to DOSE.

5.3 Factors generally subject to implementing agency control:Lack of donor coordinationContinuity in project management enhanced efficiency of project implementation. PCU was unable to fulfill its role as Project Coordination Unit in terms of coordinating donor activities and missions. The responsibilities are shared between the government and donors; however, leadership needs to be enhanced during the next phase.

5.4 Costs and financing:Initially, the PAD foresaw a total project cost of US$20 million. By project closing, the Bank contribution amounted to US$21,842,033 because of fluctuations in exchange rates (SDR-Euro). The project disbursement schedule was affected by the slow project start. Once project implementation accelerated, the disbursement pace picked up. The remaining balance of US$376,709 is scheduled to be canceled.

6. Sustainability

6.1 Rationale for sustainability rating:Unlikely

Financial sustainabilityAlthough recurrent budget allocations decreased (not just in education) during project implementation, they increased again marginally during the last year of implementation. The government’s commitment to

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education was present throughout the project cycle with education receiving one of the largest shares; however, the share remains very small compared to its neighboring countries and thus continued financial sustainability is not asssured. Given its heavy indebtedness, the government relies on donor support for many activities in the sector. The Gambia has been characterized as a donor orphan country; nevertheless, it has been receiving support from UNICEF, DfID, the African Development Bank, and the EU. In 2004, donor's funding as a share of GDP amounted to 1.17% whilst government spending on education as a share of GDP corresponded to 1.86%. Donor coordination, including the harmonization of reporting arrangements and other procedures, has not been successfully implemented. For the upcoming project, strengthening donor coordination will be necessary.

Technical sustainabilityThe Education Management Information System has been in place since 2002 under the technical assistance provided by DfID; after that financing elapsed, the data collection and analysis system broke down and updated statistics and data were not available after 2002-03. At the ICR stage, the data for the remaining years were collected, and the validation process was underway for 2003-04 and 2004-05.

Institutional sustainabilityProject implementation was hampered by the attrition of qualified staff from DOSE mainly because of the low salaries and lack of benefits. In order to address this problem, a general civil service reform has to be carried out; in the meantime, DOSE intends to introduce a performance-based system that offers bonuses to high-performing teams.

6.2 Transition arrangement to regular operations:The transition to regular operations has two aspects:

1) Strategic aspect: The recently closed project has been in complete alignment with the government’s education policy and the master plan. The next operation will continue to be smoothly integrated into the second phase of the government’s education sector program and will support the government’s priorities in conjunction with other donors.

2) Financial aspect: Education continues to be a priority for the government; however, macroeconomic instability, contraction of the economy, and a large debt service have hampered the government’s ability to follow through on its commitment. In the 2006 budget discussions, education received the largest share (18 percent) and increase despite a significant decline in government revenues. In addition, with The Gambia being an Education For All–Fast-Track Initiative (EFA/FTI) country, it is unlikely that external funding will dry up.

7. Bank and Borrower Performance

Bank7.1 Lending:The Bank’s performance during preparation was Satisfactory. The Bank’s priority since the start was to support the borrower's ownership of the project. To that end, the Bank provided the necessary technical assistance to the DOSE core team to assist in drafting the master plan, the policy framework, and the public expenditure review, and to strengthen the borrower’s capacity to fulfill its tasks successfully. The Bank’s team held meetings as often as twice a month. The fact that the TTL was based in the Resident Mission in Dakar allowed for much closer collaboration than is often the case. At the pre-appraisal and appraisal stages, donor partners including UNDP, UNICEF, and DfID participated in the missions.

7.2 Supervision:

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SatisfactoryBank supervision missions identified and resolved educational, financial, and procurement issues during most of the project implementation period. The Bank’s task team provided ongoing support from headquarters or from the Resident Mission in Senegal and through regular missions to The Gambia. The mission teams generally consisted of staff members or consultants with expertise in different component areas. More field visits at the school and community levels could have led to more sustained dialogue with regard to project impact with beneficiaries, better quality control of constructions, and supervision of education quality. The quality component was only downgraded to Unsatisfactory in 2004, although given the lack of progress in the past; it should have received this rating as soon as preliminary results of the National Assessment Tets (NAT) were obtained in 2002. In addition, the MLA had provided a grim picture of student outcomes in 2000. Moreover, not all the indicators were tracked in the PSR/ISR.

The last two years of implementation were a bit stormy as a result of reshuffling and attrition of civil service staff. In addition, the Secretary of State at that time was frequently out of country, creating significant delays in the mission schedules; for example, a supervision mission had to be postponed twice. Although the Bank budget was generally modest, since the beginning of CY 2004 at least US$200,000 were secured from consultant trust funds, enabling more experts to join the mission and allowing a greater focus for the first time on education quality, particularly on the teacher training college (Gambia College) and the teaching and learning processes in the classroom. The Bank’s team took the lead in securing the EFI–FTI Catalytic Grant, and The Gambia received US$8 million US$(4 million per year) for 2004 and 2005.

Internal Bank documentsThe sector manager and the country director first commented on supervision reports in May 2002, three years after project implementation. Inconsistencies in the PSR were noted: For example, the PDOs are not thoroughly defined during the first 12 PSRs. Starting from PSR 13, the PDOs were changed, referring to the ones from the DCA.

7.3 Overall Bank performance:With the benefit of hindsight, many of the targets agreed to in DCA and PAD were overambitious. Given the large number of components and PDOs, it was unrealistic to believe that all of the activities planned could have been achieved in four years. Despite some difficult conditions at times during the project cycle, the project was able to achieve most of its goals and targets. There were four TTLs during the 10-year project cycle, but each transition ran smoothly because most of the TTL were part of the team before taking charge. Overall, the Bank’s performance is rated as Satisfactory.

Borrower7.4 Preparation:The government performed in a Satisfactory manner during preparation.

The DOSE assigned a project coordinator and a core team of qualified staff to assist with the design and development of the project. There was continued collaboration between the borrower and the Bank. After some initial problems, the government took ownership of the project and led the preparation process, with some technical assistance provided by international and national consultants. The participation and inputs from beneficiaries demonstrated the borrower’s commitment to benefit all stakeholders.

7.5 Government implementation performance:The government's performance during implementation is assessed as Marginally unsatisfactory.

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Due to The Gambia's unstable macroeconomic situation and large debt service, the education budget shrunk significantly over the project cycle. Additional contraints included an overly centralized budget administration, which did not permit each directorate to receive its own allocation and to define its individual work-plan to meet the overall objectives of the sector. In addition, during the economic recession in 2003, the month-to-month cash budgeting was a problem that prevented adequate financial planning within the DOSE. At the end of the project, quarterly budgets were in place

Moreover, insufficient provision of government budget resources (counterpart funding) during the first two years of project implementation, compared to what was originally planned in the PAD, created delays in the realization of activities. This resulted in an Unsatisfactory rating of implementation progress. This issue was then addressed. Delays encountered in the definition of specifications, preparation of bidding documents, and award of contracts resulting from slow national processes were areas of concern and negatively affected the project at the beginning.

7.6 Implementing Agency:The Project Coordination Unit (PCU) showed strong commitment throughout project implementation despite some understaffing in the last two years of implementation. During most of the project cycle, one project manager and one deputy project manager who were familiar with the Bank’s procedures managed the project. Overall, the implementation agency performed in a Satisfactory manner.

ProcurementWork was hampered by some problems with procurement procedures. Two procurement issues caused delays in project implementation First, procurement of textbooks and other instructional materials fell behind schedule because of delays in national procurement procedures. Second, the computer bid for 500 computers to be installed in secondary schools was canceled because of a dispute in the selection of suppliers. The classroom construction program was also delayed, although this did not have large repercussions on the overall project, given that the target of 942 classrooms under phase 1 was surpassed. In January 2004, the procurement officer resigned, leaving the unit to be run by the assistant procurement officer, who was not adequately trained.

Financial managementThe only staff member to be fully trained was sent overseas in 2001 to undertake an MBA under the project’s financing. She came back and has since then been confirmed as the Financial Comptroller of the PCU. No other staff member has received the proper training in the financial management system. Close to the end of the project, an assistant project accountant was recruited. All the audits were rated “unqualified.”

7.7 Overall Borrower performance:The overall borrower performance is rated as Marginally unsatisfactory. Despite severe budget decreases, the DOSE showed strong ownership and commitment throughout project implementation although weaknesses were noted in 2003 with the leaving of some key staff. Despite the problems of maintaining staff, the PCU was able to successfully do its work. At the ICR stage, the majority of these issues were resolved and prospects seem promising for the next project. Most of the PDOs were achieved, and in some cases even surpassed initial expectations. On the other hand, the Department of State for Finance has not been provided with sufficient financial resources from the Government to enable it to deliver on its committment as established in the PRSP, therefore the overall borrower performance is rated Marginally unsatisfactory.

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8. Lessons Learned

Key lessons can be drawn from the project at two levels, as described below.

Preparation

Establishment of a government task team at the early preparation stage is important. In addition to building ownership of the project, it allows the Bank’s team to assess the implementation capacity of the borrower and provide technical assistance as needed. It also enables the Bank's team to provide support for project effectiveness and at the early stages of implementation.

Salary scales in the project coordination unit need to be in line with those of private sector competitors. This would prevent attrition of competent individuals, as was seen in this project unit, and would enhance smooth project implementation.

Supervision

Private-public partnerships. Enrollment growth in secondary education can be accompanied by important developments in private sector participation and household cost sharing. For example, the private sector can get involved in the management of the school and government can provide subsidies to keep the units costs down. In terms of household cost sharing, students can contribute nominal registration fees and funds for textbook rental with waivers available for students from poor households.

Girl's scholarships have important impacts on enrollment at the post-basic level. Scholarships for girls ensure that cost considerations do not keep them out of school and permit to raise enrollment of girls significantly. However, gender equity also applies to boys' enrollment. Insufficient attention to boys may lead to a decline of their attendance.

Ensure sustainability of EMIS and create a data-driven culture, which is essential for policy making. It is essential to keep data up to date and staff trained in data collection and analysis to allow for reliable monitoring and evaluation, achievement of triggers, and objectives. This may require different pay scales for staff who may have little problem finding better paying jobs in the private sector.

Create incentives (financial and nonfinancial) that support a project and are performance-based. For example, in order to keep qualified teachers in the system, financial incentives, even small ones that do not significantly affect the budget, can make a difference. It is also important to provide capacity building opportunities to teams in order to prevent an entire system from collapsing when some individuals leave the system.

Teacher training programs need to be given sustained attention. Rather than try to increase preservice intake rapidly to fulfill teacher shortages in the system, serious attention needs to be given to the caliber of recruits and to revising the program in terms of content knowledge, pedagogic methodology, and teaching practice.

Strong coordination is needed among donors to ensure consistency among the respective education projects in alignment with the priorities of government’s national education policy. Despite much discussion at preparation, donor coordination often does not occur during implementation. Government ownership of the coordination, harmonization of procedures, and alignment of project objectives are

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suggested means to enhance donor coordination. In addition, common indicators for measuring education quality should be used by all key donors and the government. This will allow for more efficient tracking of progress and enable the government to take quick action when problems arise.

9. Partner Comments

(a) Borrower/implementing agency:

(b) Cofinanciers:

(c) Other partners (NGOs/private sector):

10. Additional Information

Chart 1: Historical Profiile of PDO and IP Ratings (PSR, ISR)

May

99,

PS

R1

Jun

99, P

SR

2

Dec

99,

PS

R3

Jun

00, P

SR

4

Dec

00,

PS

R5

Jun

01, P

SR

6

Dec

01,

PS

R7

May

02,

PS

R8

Dec

02,

PS

R9

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03,

PR

S10

Dec

03,

PS

R11

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04, P

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12

Aug

04,

PS

R 1

3

Apr

05, I

SR

14

Apr

il 30

, 200

5

PDO

-2-1.5

-1-0.5

00.5

11.5

22.5

Historic Profile of PDO and IP Ratings3=HS 2=S 1=MS -1=MU -2=U -3=HU

PDO

IP

Chart 2: Historical Profile of Component Ratings (PSR, ISR)

- 24 -

Project Component Rating3=HS 2= S 1= MS -1=MU -2=U -3HU

-2

-1

0

1

2

3

May 99,

PSR1

Jun 9

9, PSR

2De

c 99, P

SR3

Jun 0

0, PSR

4De

c 00, P

SR5

Jun 0

1, PSR

6De

c 01, P

SR7

May 02,

PSR8

Dec 0

2, PSR

9May

03, PS

R10

Dec 0

3, PSR

11Ju

n 04, P

SR12

Aug 0

4, PSR

13Ap

r 05, I

SR14

Rat

ing

sBasic Education

Girls Education

Improve Quality of Basic Dvlp

Early Childhood Dvlp

Secondary Education

Vocational and Technical Edu

University Education

Adult Education

Sector Management

Chart 3: Disbursements vs. Estimates

Disbursements vs. Estimates

-

1,000,000

2,000,000

3,000,000

4,000,000

5,000,000

6,000,000

CY98

CY99

CY00CY0

1CY02

CY03

CY04

05-A

pr

Apr th

ru A

ug

Remain

ing

US

D (

$,00

0)

Actuals

Estimates

Chart 4: Disbursements by Percentage

- 25 -

D isbursements by %

8 %

2 1 %

1 8 %

2 3 %

1 6 %

1 3 %

1 %-

5 0 0 , 0 0 0

1 ,0 0 0 , 0 0 0

1 ,5 0 0 , 0 0 0

2 ,0 0 0 , 0 0 0

2 ,5 0 0 , 0 0 0

3 ,0 0 0 , 0 0 0

3 ,5 0 0 , 0 0 0

4 ,0 0 0 , 0 0 0

4 ,5 0 0 , 0 0 0

5 ,0 0 0 , 0 0 0

C Y 9 8 C Y 9 9 C Y 0 0 C Y 0 1 CY02 CY03 CY04 0 5 - A p r A p r t h r uA u g

Balance

($,0

00)

Actua ls

- 26 -

Annex 1. Key Performance Indicators/Log Frame Matrix

Outcome / Impact Indicators:

Indicator/Matrix

Projected in last PSR1

Actual/Latest Estimate

Cost recovery programs for technical, vocational and teacher education in place

Cost recovery program in place Cost recovery program in place

Physical facilities allocated to priority regions 75% 75%Girls' share of enrolment in grades 1-9 increased from 43% to 46%

46% Grades 1-6 (2004): 50%; grades 7-9 (2004): 47%

80% TEVT graduates in fulltime employement within 12 months of graduation

80% N/A a tracking study is in process

Public expenditure per student in grades 1-9 decreased by 20%

N/A N/A

Education share of the recurrent budget increased from 24% to 26% (excluding debt service)

N/A 2000: 24.19%; 2001: 23.46%; 2002: 14.66%; 2003: 20.34%; 2004: 17.62%

Student achievement rates in grades 1-9 increased

N/A A baseline for grades 3 and 5 has been done through the development of a National Assessmernt Test

Source: PAD-Most of these indicators are outcome/impact indicatorsOutput Indicators:

Indicator/Matrix

Projected in last PSR1

Actual/Latest Estimate

Percentage of IDA financed classroom construction program completed

100% 108%

Grade 1-6 students have use of a set of textbooks free of charge

all all

Average rental recovery rates at least 85% for grades 7-9

85% 60%

Gambia College capacity increases gradually from 120 in 1997/98 to take 300 new teachers by 2001/2002

PTC=300; HTC = 300 Achieved

8% average annual growth rate in basic education is maintained

N/A 9.6%

Growth in girls’ enrollment exceeds that for boys

N/A Achieved

Fees are reduced from 150 to 100 Dalasis per term in upper basic as of 1999/2000

N/A Achieved

Student teacher ratio in grades 1-6 increases from 30:1 to 40:1 by 2001/02

N/A 38:1

Repetition rate declines from 11% to7% in grades 1-6 by 2001/02

N/A 7%

Baseline data on student achievement established by 2001/02

N/A NAT results available

Finance recurrent budgetary allocations to education as reviewed and agreed to annually

N/A not achieved

Grant in aid is rationalized on a per student basis and is equitable across all grant-aided schools as of 1999/2000

N/A The student unit cost is equitable across all grant-aided schools

Subsidies to examinations and schools bus are frozen at their 1997 levels

N/A Subsidies for school bus are being paid under another department (DOSE). Examinations are frozen to around 3 million. Unit costs of exams are increasing but examination fees cannot be increased. These are funded under Catalytic Fund.

Coordination and management: Review meetings with participating partners held

N/A Donor meetings were held by UNICEF bi-annually at project inception. Donor

- 27 -

annually in May of each year. coordination was not sustained throughout the project.

1 End of projectSource: DCA-Most of these indicators are output indicatorsTriggers to move to Phase 2

Trigger Indicator ActualDonor coordination is effective Annual review and planning

meetings with all main partners are organized and held by DOSE

Common monitoring indicators are adopted and in use

Donor meetings were held by UNICEF bi-annually at project inception. Donor coordination was not sustained throughout the project.

Access to basic education is increased

75% of IDA financed classroom construction program is completed

108% of IDA financed classroom construction program is completed

Textbook recycling and rental systems are functioning

All grade 1-6 students have use of a set of textbooks free of charge

Rental recovery rates for grades 7-9 average not less than 80%

All grade 1-6 students have use of a set of textbooks free of charge

Rental recovery rates for grades 7-9 amounted to 60% in 2003/2004. This was a significant improvement from the previous years.

Capacity of the Gambia College increases the need for trained teachers

Gambia College is able to take in 300 PTC and 120 HTC teachers a year

This was achieved except in 2003/2004 when student stipends provided by DOSE were delayed.

Sufficient recurrent budget is allocated to education

Budgetary allocations agreed to annually are provided

The recurrent budget has decreased over the project cycle. In 2004, it went as low as 10% (including debt service).

- 28 -

Annex 2. Project Costs and Financing

Project Cost by Component (in US$ million equivalent)AppraisalEstimate

Actual/Latest Estimate

Percentage of Appraisal

Component US$ million US$ million1a) Works (Gamworks-non NGO) 4.00 7.06 1761b) Works (NGOs) 2.60 1.30 501c) Works (Other) 0.20 0.75 3752) Equipment 2.00 2.68 1343) Library books, instructional materials 0.50 0.65 1304) Textbooks 0.80 1.50 1875) Consultants 3.00 2.35 786) Training, research 2.30 3.41 1487) Scholarships (girls) 0.40 0.60 1508) Operating costs 1.00 1.17 1179) Unallocated 3.20 0.00Dept. of State for Education 0.37

Total Baseline Cost 20.00 21.84Total Project Costs 20.00 21.84

Total Financing Required 20.00 21.84The project costs were not kept by components but by categories

Project Costs by Procurement Arrangements (Appraisal Estimate) (US$ million equivalent)

Expenditure Category ICBProcurement

NCB Method

1

Other2 N.B.F. Total Cost

1. Works 0.00 7.90 2.30 15.70 25.90(0.00) (5.30) (1.30) (0.00) (6.60)

2. Goods 1.80 1.40 0.60 2.80 6.60(1.10) (0.90) (0.20) (0.00) (2.20)

3. Services 0.00 0.00 5.20 2.40 7.60(Consultant Services) (0.00) (0.00) (3.00) (0.00) (3.00)4. Instructional Materials 0.00 0.00 1.00 0.40 1.40

(0.00) (0.00) (0.60) (0.00) (0.60)5. Training 0.00

(0.00)0.00

(0.00)2.70

(2.00)2.50

(0.00)5.20

(2.00)6. Recurrent Costs 1.80

(0.00)0.00

(0.00)2.10

(1.40)0.60

(0.00)4.50

(1.40) Total 3.60 9.30 13.90 24.40 51.20

(1.10) (6.20) (8.50) (0.00) (15.80)2. Goods refer to equipment and furniture.

Project Costs by Procurement Arrangements (Actual/Latest Estimate) (US$ million equivalent)

Expenditure Category ICBProcurement

NCB Method

1

Other2 N.B.F. Total Cost

- 29 -

1. Works 0.12 4.74 3.63 0.00 8.49(0.08) (3.56) (3.07) (0.00) (6.71)

2. Goods 1.79 1.03 1.39 0.00 4.20(1.55) (0.80) (0.75) (0.00) (3.10)

3. Services 0.00 0.00 2.09 0.00 2.09(Consultant Services) (0.00) (0.00) (1.42) (0.00) (1.42)4. Instructional Materials 0.00 0.00 0.00 0.00 0.00

(0.00) (0.00) (0.00) (0.00) (0.00)5. Training 0.00

(0.00)0.00

(0.00)0.00

(0.00)0.00

(0.00)0.00

(0.00)6. Recurrent Costs 0.00

(0.00)0.00

(0.00)0.00

(0.00)0.00

(0.00)0.00

(0.00) Total 1.91 5.78 7.10 0.00 14.79

(1.63) (4.36) (5.24) (0.00) (11.22)These figures have been automatically generated by the system

1/ Figures in parenthesis are the amounts to be financed by the Bank Loan. All costs include contingencies.2/ Includes civil works and goods to be procured through national shopping, consulting services, services of contracted staff

of the project management office, training, technical assistance services, and incremental operating costs related to (i) managing the project, and (ii) re-lending project funds to local government units.

Project Financing by Component (in US$ million equivalent)

Component Appraisal Estimate Actual/Latest EstimatePercentage of Appraisal

Bank Govt. CoF. Bank Govt. CoF. Bank Govt. CoF.1a) Works (Gamworks-non NGO)

4.00 0.40 7.06 0.40 176.5 100.0

1b) Works (NGOs) 2.60 0.13 1.30 0.13 50.0 100.01c) Works (Other) 0.20 0.02 0.75 0.02 375.0 100.02) Equipment 2.00 2.68 0.03 134.03) Library books, instructional materials

0.50 0.65 0.01 130.0

4) Textbooks 0.80 1.50 0.01 187.55) Consultants 3.00 2.35 78.36) Training, research 2.30 3.41 148.37. Scholarships (girls) 0.40 0.60 150.08) Operating costs 1.00 0.05 1.17 0.05 117.0 100.09) Unallocated 3.20 3.20 100.0Dept. of Education 0.37

The project costs were not kept by components but by categories. In addition to the GLF contribution to the project's categories, the overall GLF contribution amounted to GMD 65,721,001.90 or US $2,347,178. Cofinancing is not applicable for this projext. Funding from other donors to the Government's education sector program are under parallel financing

- 30 -

Annex 3. Economic Costs and Benefits

The PAD (Annex 4) proposed an economic and fiscal justification of the project along three lines: (i) rationale for public intervention including the distribution of enrollment in basic and secondary education; and, private and social rates of return; (ii) cost effectiveness analysis and financial analysis; (iii) impact of the program on government recurrent expenditure; and (iv) poverty analysis and targeting. This annex aims to assess how the situation has evolved since appraisal, and, in particular to make a posteriori judgement on whether the justification of the project is still valid after completion. Given its interconnection, point ii) and iii) will be combined in this analysis. Updated private and social rates of return will not be feasible given the unavailability of 2003 household survey results and point iv will not be addressed given the lack of data permetting to engage in a deeper analysis.

(i) Rationale for public intervention and benefitsThe enrollment figures have tremendously increased throughout the project and the increase in female participation has been enormous demonstrating the surge in demand. Student enrollment in grades 1-6 has increased from 157,177 in 2000 to 180,417 in 2004/05. At the upper basic level, enrollment increased from 41,615 in 2000 to 66,025 in 2004/05 and in senior secondary, enrollment increased from 15,165 in 2000 to 29,349 in 2004/05. One explanation for this surge in female enrollment in particular (see table below) is due to the introduction of the girl scholarship scheme which was inducted under the project.

Table 1: distribution of enrollment in basic and senior secondary education

GER 1999/2000 2000/01

2001/02

2002/03

2003/04 2004/05

Grade 1 to 6 72.5% 74.0% 75.2% 76.3% 75.8% 75.6% Female 66.9% 71.2% 73.3% 76.9% 77.8% 78.9% Male 78.2% 76.7% 76.9% 75.6% 73.8% 72.4% Grade 7 to 9 42.4% 43.0% 46.9% 49.4% 64.9% 65.3% Female 34.4% 36.5% 39.7% 43.9% 54.0% 65.0% Male 50.7% 49.4% 54.0% 54.7% 63.7% 65.6%Grade 1 to 9 63.6% 64.3% 66.4% 68.1% 72.8% 72.5% Female 57.2% 60.3% 62.8% 66.8% 70.7% 74.8% Male 70.2% 68.2% 69.8% 69.3% 74.9% 70.4%Grade 10 to 12 17.9% 17.6% 17.0% 20.2% 26.9% 28.5% Female 13.0% 13.1% 13.2% 15.0% 22.7% 23.6% Male 23.1% 22.3% 20.9% 25.4% 31.1% 33.3%

At the supply side, the project contributed to the construction of 1,015 classrooms resulting in an average annual construction volume of 170 classrooms and the creation of 6,800 places if one estimates an average student/teacher ratio of 40:1.

ii) Costs and Financial Analysis

Financial analysis:

- 31 -

The PAD projections implied that the share for education would increase from 18.30% in 1997 to 21.80% in 2005. An analysis of expenditures shows a rather different picture. Educational expenditure as a share of the Government recurrent expenditures has decreased over the period of the credit from 17.46% in 2000 to 10% in 2004.

Table 2: PAD projections for education budget

1997 2001 2005Education’s % of Government recurrent expenditures (incl. interest payments**

18.30% 21.30% 21.80%

Table 3: Public spending on education

2000 2001 2002 2003 2004 2005*Education’s % of Government recurrent expenditures (incl. interest payments**

17.46% 16.35% 11% 13.31% 10% 12%

Public expenditures on education as a % of GDP**

3.05% 2.17% 2.41% 2.08% 1.86% 1.99%

Donor funding as as % of GDP

1.17%

* estimated in budget 2005** Source: Government budget

Another measure that assesses the fiscal impact of the project and the weight of the sector in the economy is the share of expenditures of GDP. These expenditures represent 1.86% of the GDP and are significanlty below the SSA average (3.4%). The share of external funding for education represented 63% of the government spending for education in 2004. Consequently, the reliance on external assistance is tremendous.

Table 4: Education spending as % of GDP (2000) in other SSA countries

Malawi Mali Benin Niger Ghana4.9 3.6 3.2 2.5 4.1

In adddition to these aggregate figures it is necessary to analyze the intrasectoral allocations unit costs. Unlike many other government budgets, The Gambia’s budget is not broken down by primary, lower and upper secondary, and tertiary education levels. Rather, primary and lower secondary are grouped together and form grade 1-9 levels; upper secondary and tertiary education

- 32 -

are also grouped in the Government budget. According to the Goverement, the only proxy to determine unit cost by subsector is student enrollment. When analyzing these numbers provided by subsector, the ICR realised that unit costs were the same for 1-6 and 7-9. Therefore, the reliability of these numbers were doubtful. In addition, given that the majority of activities targeted grade 1-9 levels, the focus of this analysis will pertain to that subsector.

Table 5: recurrent budget for education by basic education subsector

2000 2001 2002 2003 2004Grade 1-9 64.13% 51.46% 64.31% 59.81% 63.16%

Unit Costs: The evolution of the unit cost is similar to the total costs for basic education (grades 1-9), which increased from 2000-2004 with a sharp decline in 2001 although the enrollment figures increased steadily since 2000.

Unit cost in 2004 reach 611GMD (20. $) which corresponds to 14% of GDP per capita, which is on the lower side of what is observed in other countries. Against this background the direct impact of project on the recurrent expenditures in the sector is significant.

Chart 1: Grade 1-9 budget and enrollment

Grade 1-9 budget and enrollment

0

50,000

100,000

150,000

200,000

250,000

300,000

2000 2001 2002 2003 2004

nu

mb

er o

f st

ud

ents

0

20000000

40000000

60000000

80000000

100000000

120000000

140000000

160000000

number of students

budget 1-9

BenefitsThroughout the project cycle, 27,895 upper basic female students and 4,588 senior secondary

- 33 -

female students benefitted from scholarships having a direct impact on the growth enrollment rates. (see first table above).

Table 6: Girl scholarships and expenditures

Grade 7-9 Grade 10-12 Amounts Gr.1-6 Amounts 7-9 27,895 students 4,588 students GMD 21,683,468 GMD 7,987,158

Chart 2: Girls' enrollment and scholarships (grades 7-9)

Girls Enrollment (gr7-9) and Scholarships

2289

10058

8886

6662

54.0%

43.9%

39.7%36.5%

0

2000

4000

6000

8000

10000

12000

2001 2002 2003 2004

Scholarships

Gir

l Gro

ss E

nro

llmen

t

0.0%

10.0%

20.0%

30.0%

40.0%

50.0%

60.0%

Gross Enrollment

Percentage

Chart 3 : Girls'enrollment and scholarships (grades 10-12)

- 34 -

Girls Enrollment (gr10-12) and Scholarships

10621206

1909

411

13.1% 13.2%

15.0%

22.7%

0

500

1000

1500

2000

2500

2001 2002 2003 2004

Scholarships

Gir

l Gro

ss E

nro

llmen

t

0.0%

5.0%

10.0%

15.0%

20.0%

25.0%

Gross Enrollment

Percentage

Table 7: PAD projections and actuals at project closing

2000/01 PAD estimates 2005

Actuals 2005

Grades 1-6

Gross enrollment ratio

74% 76%

88% (including madrassas)

>90% (including madrassas)

% repetition 4% 4% 3%%dropout 7% 4% 7%%classe double-shifting or multigrade classes

35% 25%

Grades 7-9

% repetition 4% 2% 6%%dropout 14% 0% 10%%classe double-shifting or multigrade classes

50% 33%

Transition rate from grade 6 to 7

90% 87% 94%

- 35 -

Grades 10-12 gross enrollment ratio

18% 26% 28.5%

Transition rate from grade 9-10

59% 54 % 65%

As noted in the main text, the gross enrollment rate improved significanlty over the course of the project and surpassed the intial projections stipulated in the PAD. Repetition rate in lower basic education has been lowered to 3% surpassing the target set in the PAD by 1%. The same progresss has not been made in upper basic, in which repetition rate has not met its target. The dropout rate in lower basic education has been lowered but is still 3% away from the projected target in the PAD. In upper basic the dropout rate is unacceptably high and is far from the estimated target. Multigrade classes have not increased as estimated. A possible reason relates to the large number of new teachers that have been absorbed by the system.

Student-teacher ratio have increased over the project cycle and almost reached the pre-established target of 40:1. Progress with regard to textbook ratios have been made significantly and at project closing all grade1-6 students had a free set of textbooks.

In terms of academic achievement, girls continue to underpeform compared to boys. Academic achievement remains low. The project contributed to the development of a National Assessment Test allowing for the establishment of a baseline data. Results show that less than 10% achieved the desired mastery level of 73%. The end of year exams in 9th grade show similar weak results.

Table 8: GABECE Gambia Basic Education Exam (2003) : passing rates

Female 14.16%Male 17.54%Total 16.09%

The passing rates don’t provide for a complete picture since the admission to Grade 10 is determined by an aggregate score, which is different form the individual pass rates per subject. However, the academic performance rates remain low in general. The next project will need to analyze the different exams and provide suggestions for a more reliable examination system since it seems unrealistic to believe that less than 20% of the student population passes the examination to senior secondary.

Rates of returnDeveloping counties tend to follow conventional patterns of rates of return with social rates diminishing with the level of education and private returns being higher than social rates. The Gambia follws a similar pattern; however, the private rate of return for secondary education is only marginally higher than its social rate. The same observation can be made for basic education (see table below for rates of return). The PAD’s Annex 4 did not make any assumptions on repetition and unemployment and their potential impact on the rate of return. Consequently, a

- 36 -

deeper analysis cannot be undertaken with regard to the impact of the combination of repetition and unemployment on returns.

The Gambia did not complete a rate of return analysis since 1997/98. A household survey has been completed in 2003 but the results are not yet available. A Country Status Report is planned to be conducted in the following years, and will allow to update some of the missing information.

Table 9 : private and social rates of return (1997/98)

Private SocialBasic education (1-9) 37 34Secondary education 13 12Vocational/technical education

24 16

- 37 -

Annex 4. Bank Inputs

(a) Missions:Stage of Project Cycle Performance Rating No. of Persons and Specialty

(e.g. 2 Economists, 1 FMS, etc.)Month/Year Count Specialty

ImplementationProgress

DevelopmentObjective

Identification/Preparation11/10/1996 4 TASK TEAM LEADER (1);

ARCHITECT/IMPLEMENT-ATION SPEC (1); TVET SPEC (1); EDUCATION SPEC (CURRICULUM & SCHOOL MANAGEMENT) (1)

04/27/1997 2 TASK TEAM LEADER (1); HGHER EDUCATION SPECIALIST (1)

05/14/1997 2 TASK TEAM LEADER (1); EDUCATION SPECIALIST (1)

06/09/1997 1 TASK TEAM LEADER (1)08/21/1997 1 TASK TEAM LEADER (1)

Appraisal/Negotiation11/17/1997 5 TASK TEAM LEADER (1);

EDUCATION SPECIALIST (CURRICULUM) (1); IMPLEMENTATION SPECIALIST (1); EDUCATION SPECIALIST (TVET) (1); TASK TEAM ASSISTANT (1)

05/03/1998 5 TASK TEAM LEADER (1); OPERATIONS OFFICER (1); IMPLEMENTATION SPECIALIST (1); EDUCATION SPECIALIST (1); ECONOMIST (1)

Supervision

05/16/1999 5 SR. OPERATIONS OFFICER (1); EDUCATION SPECIALIST (2); PROCUREMENT SPECIALIST (1); FINANCIAL MGMT SEP. (1)

S S

11/18/1999 6 TASK TEAM LEADER (1); INSTITUTIONAL SPECIAL (1); SR. EDUCATION SPECIALI (1); PROCUREMENT SPECIALIST (1); CONSULTANT, EDUCATION (1); FINANCIAL MANAGEMENT S (1)

S S

08/20/2000 7 TASK TEAM LEADER (1); S S

- 38 -

EDUCATION SPECIALIST (2); FINANC. MGT SPECIALIST (1); EDUC. TEXTBOOK SPECIAL (1); PROCUREMT SPECIALIST (1); EDUC. CAPACITY BUILD. (1)

02/02/2001 4 TEAM LEADER (1); SENIOR EDUCATION SPECI (1); INSTITUTION DEV. SPECI (1); PROCUREMENT SPECIALIST (1)

S S

12/05/2001 3 TEAM LEADER (1); TEXTBOOK SPECIALIST (1); FIN. MAN. SPECIALIST (1)

S S

05/01/2002 4 MISSION LEADER (1); EDUCATION SPECIALIST (1); PROCUREMENT SPECIALIST (1); FINANCIAL MANAGEMENT (1)

S S

04/17/2003 1 TASK TEAM LEADER (1) S S06/05/2004 5 EDUC SPEC (TEACHR TRG)

(1); EDUC SPEC (GENDER) (1); EDUCATION SPECIALIST (1); EDUC SPEC (INSPECTION) (1); MISSION LEADER (1)

U S

12/12/2004

U=Marginally Unsatisfactory

14 TASK TEAM LEADER (1); EDUCATION SPECIALIST(1); EDUC SPEC (TEACHER TRG) (1); EDUC SPECIALIST (INSPECTION) (1); EDUCATION SPECIALIST (ENGLISH LANGUAGE) (1); EDUC SPECIALIST (ASSESSMENT) (1); INSTITUTIONAL ASSESSMENT SPECIALIST (1); HIGHER EDUCATION SPECIALIST (2); FINANCING SPECIALIST (1); STATISTICAL EXPERT (1); LABOR MARKET SPECIALIST (1); EDUCATION SPEC (NON-FORMAL) (1); LEAD EDUCATION SPEC (1)

U U

04/07/2005

S=Marginally Satisfactory

10 TASK TEAM LEADER (1); EDUCATION SPECIALIST (1); EDUC SPECIALIST (TEACHER TRG) (1); EDUC SPEC (ENGLISH LANGUAGE) (1); HIGHER EDUC SPEC (4) EDUC SPEC (NON-FORMAL) (1) CONSTRUCTION &

S S

- 39 -

IMPLEMENTATION SPEC (1)

ICR08/09/2005

S=Marginally Satisfactory

6 TASK TEAM LEADER (1); ICR MISSION LEADER (1); HIGHER EDUC SPECIALIST (1); CONSTRUCTION & IMPLEMENTATION SPEC. (1); INSTITUTIONAL DEVELOPMENT SPEC (1); PROCUREMENT SPEC (1)

S S

(b) Staff:

Stage of Project Cycle Actual/Latest EstimateNo. Staff weeks US$ ('000)

Identification/Preparation N/A 365.8Appraisal/NegotiationSupervision 158.31 707.6ICR 15 35Total 173.31 1108.4

Because of a lack of information, identification/preparation and appraisal/negotiation were combined

- 40 -

Annex 5. Ratings for Achievement of Objectives/Outputs of Components(H=High, SU=Substantial, M=Modest, N=Negligible, NA=Not Applicable)

RatingMacro policies H SU M N NASector Policies H SU M N NAPhysical H SU M N NAFinancial H SU M N NAInstitutional Development H SU M N NAEnvironmental H SU M N NA

SocialPoverty Reduction H SU M N NAGender H SU M N NAOther (Please specify) H SU M N NA

Private sector development H SU M N NAPublic sector management H SU M N NAOther (Please specify) H SU M N NA

- 41 -

Annex 6. Ratings of Bank and Borrower Performance

(HS=Highly Satisfactory, S=Satisfactory, U=Unsatisfactory, HU=Highly Unsatisfactory)

6.1 Bank performance Rating

Lending HS S U HUSupervision HS S U HUOverall HS S U HU

6.2 Borrower performance Rating

Preparation HS S U HUGovernment implementation performance HS S U HUImplementation agency performance HS S U HUOverall HS S U HU

Overall borrower performance is rated marginally unsatisfactory

- 42 -

Annex 7. List of Supporting Documents

I. Project DocumentsAide-Memoires Project Status Reports (PSRs), Seq#1-14. (2000-2005)Project Appraisal Document (PAD), April 7, 1998

Development Credit Agreement (DCA), September 22, 1998 Office MemorandumsBTO

Project Correspondence

II. Bank Documents CAS, 1998

III. Government Documents Revised Education Policy (1988-2003), Department of State for Education

National Education Policy (2004-2015), Department of State for Education Education Master Plan (1998-2005), Department of State for Education

Education Sector Review and Linking Education with Human Resource Development and Utilization. Consultant: Dr. Alieu B S Taal, University of Gambia. The University of The Gambia's Corporate Strategy (draft, 2005) Education Public Expenditure Review, 1998; 2001

Strenghtening Budgetary Performance and Management. Public Expenditure Review, 2004. Estimates of Recurrent Revenue and Expenditure with Development Expenditure, 2000-2005

Technical and Vocational Education and Training Policy (2003), Department of State for Education

Monitoring of Learning Achievements (MLA) Project. National Report. Assessment of Learning Achievements and the Conditions of Teaching & Leanring in Primary Schools in The Gambia. Department of State for Education (2000) National Assessment Tests (2002). West Africa Examination Council (WAEC)

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Additional Annex 8. Supplementary Tables

Table 1: Relevance of Project Components with regard to Project Development ObjectivesComponents from PAD

Component 1: Access to Basic Education: Increase the gross enrollment ratio of 7-15 year old in grades 1-9 to 77% in 2002 by:(i) extension of double-shift and multi-grade teaching(ii) new construction and rehabilitation of existing facilities (iii) establish linkages between Madrassa edu. and formal system(iv) expansion of opportunities for the disabled (v) improvement in the supply and deployment of teachers (vi) provision of school lunchesComponent 2: Girls’ Education: Increase the enrollment, retention and performance of girls attending grades 1-12 through: (i) a scholarship scheme and flexible fee schedules(ii) the development of a supportive learning environment (iii) a community and teacher sensitization program (iv) an increase in the proportion of female teachers in schoolsComponent 3: Quality and Relevance of Basic Education: Improve the quality of basic education, through: (i) reforming the curriculum for grades 1-9 (ii) access of a complete set of textbooks for each grade(iii) providing an adequate supply of teaching/learning materials(iv) reorganizing the production capacity and potential BPMRU (v) revising the system of assessment and examinations (vi) enhancing monitoring and evaluation capacity(vii) expanding the provision of INSET(viii) expanding coverage, guidance, counseling and library services(ix) re-introducing school broadcasting servicesComponent 4: Early Childhood Development and Care: Ensure that the quality of ECDC is enhanced and that the number of children attending pro-school, particularly in rural communities by: (i) a review of operational policy guidelines (ii) training for ECDC providers (iii) the promotion of community based and managed programsComponent 5: Secondary Education: Increase enrollment in grades 10-12, and improve quality of senior secondary education: (i) extension of double-shift teaching (ii) scholarship incentives for girls and construction of new facilities (iii) increasing the number of qualified and trained Gambian teachers(iv) the introduction of computer technology and literacyComponent 6: Vocational and Technical Education: Increase access to post-school vocational and technical education through: (i) expansion of skills training centers in rural areas (ii) upgrading the facilities and strengthening capacity in GTTIComponent 7: University Education: Establish a University of The Gambia with capacity for about 2,000 students in identified priority programs and development of: GC, GTTI and MDI.Component 8: Non-formal Education: Increase adult literacy rate by expanding literacy facilities through government and private sector partnership. Component 9: Component 9: Education Sector Management: Enhance the performance of the education sector through: (i) restructuring the Department of State for Education (DOSE) (ii) implementing an appraisal system for all staff (iii) strengthening the capacity of regional education offices (iv) establishing a comprehensive Management Information System(v) strengthening the projects Co-ordination Uniy

PDO (DCA)

1. Increase gross enrolment in education institutions, particularly basic education.

2. Improve education quality, and educational attainments of those studying, in the said institutions.

3. Develop a program for early childhood development and care.

4. Develop a strategy for the provision of vocational and technical education relevant to the demands of the job market.

5. Facilitate private sector participation in education and training.

6. Strengthen the capacity of education sector management institutions to carry out the program.

PDO (Annex 1)1. Student achievement rates in Grades 1-9 increased by 2002

2. Physical facilities allocated according to priority regions

3. Girls’ share of enrollment in Grades 1-9 increased from 43% to 46% by 2002

4. 80% of TEVT graduates in fulltime employment within 12 months of graduation by 2002

5. Public expenditure per student in grades 1-9 decreased by about 20% by 2002

6. Cost recovery programs for technical, vocational and teacher education in place by 2002

7. Education’s share of the recurrent budget increased from 24% to 26% by 2002

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Table 2: Bank budget over the project cycle

Bank Budget 1998-2005

$-

$100,000

$200,000

$300,000

1998 1999 2000 2001 2002 2003 2004 2005

PE-P035643-SPN Variable cost

PE-P035643-SPN Staff cost

PE-P035643-LEN Variable cost

PE-P035643-LEN Staff cost

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Additional Annex 9. Borrower's evaluation report

INTRODUCTIONThe International Development Association of the World Bank participated in Government of The Gambia 3rd Education Sector Programme in support of the Education Sector Policy Framework 1998-2003 and the Bank’s Country Strategy Papers (CSPs) 1998/00, 2001/03 & 2003/05 lending cycles.

The Department of State for Education was the Executing/Implementing Agency and PCU-DoSE assigned the responsibility to coordinates implementation activities of the project, liaison with cooperating donors and reporting.

ASSESSMENT OF DEVELOPMENT OBJECTIVES AND OUTCOMESOriginal ObjectivesTo:(i) Increase gross enrolment in educational institutions, particularly basic education;(ii) Improve education quality, and educational attainments of those studying, in the said institutions;(iii) Develop a programme for early childhood development and care;(iv) Develop a strategy for the provision of vocational and technical education relevant to the demands of the job market;(v) Facilitate private sector participation in education and training; and(vi) Strengthen the capacity of education sector management institutions to carry out the program.

Original ComponentsThe project consists of the following components:(i) Basic Education Expansion(ii) Girl’s Education(iii) Improving the Quality & Relevance of Basic Education(iv) Early Childhood Development and Care(v) Secondary School Development(vi) Vocational and technical Education(vii) University Education(viii) Adult Education and Functional Literacy(ix) Improve Sector Management

The project objectives and components were not revised at mid-term reviews and implemented as designed at appraisal.

ACHIEVEMENT OF OBJECTIVE OUTPUTSOutcomes/achievement of ObjectivesI. Gross enrolment ratio in grades 1 – 9 increased from 65% to 78% in 2002/03; exceeding

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the targeted 77%. Current GER at this level is 83%. The attainment of this target is attributed to the efficiency measures in the utilization of physical and human resources through the double shift and multi -grade teaching strategies, the effective linkages between the formal system and the parallel Madrassa system, and the massive campaign for enrolment of girls through the girl’s education programme.

II. Gross enrolment ratio for girls exceeded its target by 4 percentage points by 2002/03 for grades 1-6. This has been achieved due to a combination of factors ranging from the scholarship scheme initiated by the project which was complemented by other initiatives such as the girl friendly schools initiative (in collaboration with UNICEF) and the Dina Said fund support; all geared towards supporting the schooling of the Gambian girl child.

III. Quality and relevance of basic education still leaves much to be desired. The findings from the LAT highlight a mastery level not exceeding 10% in the core subjects. The GABECE results have been very poor over the years; with less than 10% of the candidates obtaining a mere pass in the core subjects. The outcome of these 2 different activities will provide us with the latest benchmark on quality. In the last LAT test conducted for grades 3 and 5, 90% of the learners did not achieve the mastery of 70% in the subjects tested. The increase in the resource allocations, the numerous, and varied interventions that have taken place in the sector lead to significant increased access to education. However, not much impact is made to improved quality of teaching and learning outcomes.

IV. The transition rate from grade 9 to grade 10 has reached 52% a two point over the target. This is a result of the policy initiative of universalizing basic education through the elimination of the selection/entrance examination at grade 6 thus allowing for a 100% transition to grade 7. With an increase in the UBS enrolment and the automatic transition from the lower to the upper basic, the sector has witnessed the expansion of the provision of secondary education. Hence more opportunities are offered to students to enroll at the secondary level. This has significantly contributed to improving the GER at this level to 26% against the target level of 23%. Through collaboration with partners (i.e. World Links) computers have been introduced if not in all but in the majority of senior secondary schools; the computers are mainly used to access the internet facilities thus facilitating teaching through the use of ICT.

V. The early childhood education is provided privately with majority of providers in the urban area (Region 1 and 2). More than 350 centres have been registered whilst quite a significant number of applications for new centres are received annually. Pre-school Education is provided to children between the ages of 3 and 6. Until 1995, the number of pre-school centres registered was 125; found mainly in the Greater Banjul area. However, in 1998, the number of centres increased to 265. Over the years, the rural areas have experienced an increase in the number of Early Childhood Development Centres. This type of education is entirely provided by the private sector including organizations such as Religious Missions, NGOs and private individuals.

VI. The vocational and technical education now has a TVET policy that was developed by the DOSE with support from the EC. This has led to the establishment of the National Training Authority (NTA) responsible to oversee the management of the vocational and technical

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education throughout the country. The coming into existence of the NTA, though new, is a clear sign that the sector is committed to restructuring and reviewing the programs offered. The GTTI has reviewed its programs and incorporated new ones thus its enrolment has significantly increased. Plans are on the way to embark upon a labor market needs analysis.

VII. Even though the UTG has been functional since 2001, the initial approach of developing it from the already existing institutions i.e. GC, GTTI and MDI has not fully been adhered to, even though some adhoc arrangements are in place. The UTG is on the process of finalizing its strategic plans and it has been highlighted that for the UTG to function both efficiently and effectively there is need to integrate these institutions within the UTG.

VIII. The sector has strengthened its Programme Coordination Unit (PCU) through staffing and provision of equipment. This unit has over the period managed a range of donor supported projects and initiatives. This has enabled the PCU to build capacity as well as prove its ability to manage and coordinate effectively donor funds.

IX. The sector has also established an education management information system (EMIS) for data collection and analysis thereby helping informed management on decision making issues. The system is fully operational and has been used in the conduct of studies commissioned by the sector. This has enabled the sector to manage quite a very large amount of data through use of a robust, reliable and effective EMIS system. However, the gains are achieved not without hitches for instance staff attrition experienced at the IT Department and departure of TAs/volunteers.

MAJOR FACTORS AFFECTING IMPLEMENTATION AND OUTCOME

Civil Works:The Gambian Agency for the Management of Public Works (Gamworks) signed three Delegated Management Contracts (DMCs) for the implementation of the civil works of the project. The DMCs comprised of the construction of classroom blocks, wells and furniture. By the closing date of the project, all the classrooms were completed successfully, with quality and satisfaction of the beneficiaries; but, as in any project, not without shortcomings and problems. The list below is not exhaustive but represent some of the key experiences from the project:

• For efficiency and to save time, Gamworks should have signed one DMC and phased its implementation in three stages rather than having to sign three DMCs for the same purpose.• The packaging of the different components of the DMC created many difficulties. The construction of the classroom blocks were separated from the fabrication of the furniture meant for these classrooms. Mostly, the furniture were ready long before the classrooms costing the Agency storage fees that were not factored before. For others, they were exposed to the sun and other elements outside causing the furniture to deteriorate in quality.• Another bad idea that should never be repeated again is to separate, within the works, the structure and metal works. Even though it had the good intention of giving opportunities to a whole range of contractors, it has the effect of delaying completion unnecessarily. Masonry work would be long completed while the trusses are being awaited to mount the roof. Works contracts should be left to one contractor to avoid shifting blames and all the inherent delays.

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• Contractors experienced significant cash flow problems, particularly during the time when the Dalasis was unsteady. This caused significant delays in completing the works and some contracts ended up being terminated. Price adjustment was done but that did not fully alleviate their problems. Realistic price adjustment that reflect actual currency and market situation is the solution in this case.• There were no significant problems during the procurement process due to the fact that all the contracts were NCB.• Because the construction contracts were small, it attracted small time contractors who did not have the capacity and were problematic. To avoid this, lotting of the schools for bigger packages to attract better contractors need to be entertained. Bigger packages may mean that the threshold for prior review need to be increased, the reason being the positive experience for the procurement of NCB contracts.

Apart from these, there were some technical problems that may require looking into in the future, namely:

• The grade and quality of floor slabs need to improved for durability and better finish, and also cost. Screeding on top of the concrete would not be necessary with better concrete, hence the low cost.• The steel members with their connections and fastening may need a new approach. The use of angles in lieu of tubes for roof trusses has to be looked for economy and reliability.• Tiling for the offices, especially for the principal, will reduce maintenance. Painting of floor slabs may also be a good idea.

Notwithstanding all of the above, generally Gamworks has been able to successfully implement its DMCs with the collaboration and assistance of the Project Coordinating Unit of the Department of State for Education. Gamworks has capacity to do more in future when called upon again.

Framework Agreement - Christian Children’s Fund (CCF) The Gambia, Classroom Construction, W/ Division:

The Government of the Gambia represented by the Project Co-ordination Unit, Department of State for Education concluded a framework of agreement with CCF Gambia for the construction of Classroom buildings in the W/ Division.

Three (3) lots of cumulative total of 49 classrooms were executive under the FA of which 18 buildings have been completed, 26 classroom buildings including 4 storey buildings of six classrooms are in progress and are expected to be completed by the end of the year.

Main constraints:Ø Statutory price variation for instance fuel prices and general price increase (inflation) affected works.

Ø Late identification of the site at Brufut.

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Ø Delays in the fabrication of the furniture for the classrooms due erratic power supply.

Ø Delays in receipt of duty waivers and processing of payments

Ø Weak management and supervision of works.

Ø Informal contractual arrangement with subcontractors.

Ø The limited knowledge of the donor requirement by CCF.

Ø Unforeseen problems encountered during progress of work e.g. water shortage at Brufut and increased labour cost.

Ø Lastly, claimed is made that, designs of the buildings were frequently altered and or new things introduced in the design during implementation.

Lessons Learned:Ø CCF core function and comparative advantage is not the area of civil works.

Ø Community participation in this kind of works is important. Building relations should be beyond statutory contract arrangements.

Ø Cordial relationship between parties to the contract is crucial. Dialogue between parties to the contract would resolve misunderstanding.

Ø Secondly, timely disbursement of funds after agreements are signed is necessary to avert unforeseen circumstances like inflation having adverse effect on smooth project implementation and unnecessary price variations.

Girls’ Education:The Component objective seeks to increase girls’ enrolment and retention in grades 1-12 through: (a) a scholarship scheme and flexible fee payment schedules, (b) development of a supportive learning environment, (c) a community and teacher mobilization program, and (d) an increased in the proportion of female teachers.

Significant achievements have been recorded as evident in the increased enrolment and retention rates of girls. What remains now however, is to concentrate more on improving their performance with a view to enhancing the quality of education, empowerment and development.

Achievements:

Ø Interventions geared towards the education of girls have contributed in the increases in enrolment from 60% to over 90% at the Lower Basic level and from 40% to over 50% at Upper

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Basic and a significant increase in the Senior Secondary as well. Such has also attributed to an increase in female representation at the University level.

Ø The Scholarship Trust Fund has benefited 27895 girls in the Upper Basic Schools and 4588 girls in the Senior Secondary school.

Ø 2000 community members have been sensitized about girls’ access to education, retention and performance during the last two ‘Big Bang’ sensitisation campaign activities in LRD, CRD and URD.

Ø In collaboration with UNICEF the Girl Friendly School Initiative has been scaled up from 50 to 100 in the UNICEF intervention areas of regions 4, 5 and 6.

Ø Collaborated with Community Development in the orientation and training of school heads, community members and new teachers on the Girl Friendly School Initiative and its management.

Ø In collaboration with FAWE-GAM and support from UNICEF launched over 100 Mothers’ clubs in LRD, CRD and URD and provided them with seed money to support the education of their daughters.

Ø Facilitated the completion of the validation exercise of the resource centre manual for Girl Friendly Schools by GAMLISA in the three-targeted areas.

Ø In collaboration with FAWE – GAM organized a national Maths, Science and IT Clinic to build the capacity of girls in those disciplines.

Ø Collaborated with FAWE – GAM and the Guidance and Counseling Unit in the sensitization of Brikama Upper Basic, Senior Secondary School and Community on the re-entry program dubbed “Operation give them a better Life” pilot project for out of school girls.

Ø Girls Focal Points have been identified at the Regional Directorates to institutionalize the education of girls in all six Regions.

Ø In collaboration with FAWE-GAM, held a sensitization workshop for regional and community Focal Points from all six regions.

Ø A sexual Harassment Policy and Guidelines has been developed and is currently undergoing validation and finalization by all stakeholders.

Ø A Scholarship Trust Fund Board of trustees has been constituted to give guide and oversee the operation of the scheme and help institutionalized it.

Constraints:

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Ø Weak administration of the Scholarship Trust Fund affected effective and efficient resource mobilization and optimal utilization of the fund.

Ø Lack of awareness on the part of the public about the various financial supports available in relieving parents of the cost of education for their daughters.

Ø Lack of monitoring and follow – ups to ensure proper and efficient management of disbursements, utilization of resources and verification of the number of girls receiving sponsorship.

Ø Poor performance of girls at the JSSCE and WASSCE respectively.

Ø Restriction of girls’ choices of fields of study, at school and even the homes to only stereotypical subjects limit their representation at sciences and technology disciplines.

Ø Lack of employment and skills training facilities/opportunities for girls who complete Basic and Senior Secondary School education in the rural areas.

Ø Lack of funding to set up resource centres, procure books and other equipments as well as collect data to inform the Girls Education programme interventions.

Basic Education Quality:

Objectives:

The objective of the component is to improve the quality of basic education and its relevance to the Socio-cultural and economic needs of the country through reforming the curriculum for grades 1-9, ensuring that each child has access to a complete set of textbooks for each grade, providing an adequate supply of teaching/learning materials which match the curriculum, reorganising the production capacity and potential of BPMRU, revising the system of assessment and examinations, enhancing monitoring and evaluation capacity, and expanding the provision of INSET.

Curriculum for Basic Education

Achievements:

Ø Basic education grades 1-4 curriculum reviewed, developed, textbooks produced. Introduced 4 major national languages in basic education teaching and learning.Ø Produced teachers guides for grade 1-4 produced and teachers trained on the use of thematerialsConstraints:Ø Lack of monitoring system and assessment of child-centred teaching and learning.Ø Lack of funds and experts in the production of learning provisions in this area.

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Educational Provision

Achievements:Ø Assorted titles for the University of the Gambia were also procured.

Ø The printing of teachers textbooks scheduled for 2002/2003 was accomplished. These included 3000 copies of core subject textbooks for grades 5, 6, & 9, 12000 copies of POP/FLE teacher’s, 8000 copies of instructional materials in 3 national languages for grades 1 & 2, and 5000 copies of Maths, English, and Integrated Studies of the recently revised teachers guides and materials distributed nationwide to individual schools.

Ø Introduction of a free textbook recycling scheme (TRS) at the lower basic level grades 1 – 6. at a ration of 1-1 basis. At the upper basic level 1 – 9, the textbook rental scheme (TRF) maintained were pupils pay a fee of D150 annually to have access to textbooks.

Constraints:

Ø Inadequate mobility for BPMRU and the Regional Offices restraints deliveries on time. Ø Restricted pupil’s access to textbooks at the upper basic level 7 – 9 were the rental system still exist. Ø Unaffordable/ unwillingness to pay the attached fee of D150 annually. Ø Low rental fee collection in all regions and the lack of guarantee of ownership of books that the scheme offers. .

Standards & Quality Control:

Achievements: Ø Fully operation SQUAD Unit established at DoSE.Ø Built capacities of inspectors.Ø Set up inspection criteria/manual (national bench marks).Ø System of monitoring schools administration developed.Ø High level participation of stakeholders and PTAs in school administration.

Constraints:Ø Lack mobility for school visits for instance inadequate fuel supplies, motor cycles and vehicle.Ø Poor road infrastructureØ Low capacity of inspectors/SQAD Officers.Ø Compliance by private managed schools with inspections.

Lessons drawn:Ø Adequate human and material resources are crucial for attainment of quality education.

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Examinations and Assessment (WAEC):

Achievements:

Ø Increased capacity of WAEC to developing and administering examinations that are both valid and relevant to the educational aspirations of The Gambia;Ø Revised the system of assessment and examinations (PSLCE phased out; introduction LAT and NAT and establishment of national bench marks of assessments).Ø awarding certificates that enjoy international recognition;Ø Establishment of M&E for GABECE.

Constraints:

Ø Capacity gaps still exists in the councils and resources needed to build on the level attained for instance shortage of IT staff and staff attrition.Ø Old and outdated system (Wang VS System) still in use. Important to switch over fast to Server/PC environment) and enjoy the benefit of improved modern technology.

Early Childhood Development & Care:The objective was to ensure development and operation of a comprehensive ECDC program that promote and enhance welfare of pre-school kids and parents.

Achievements:Ø ECDC database established.Ø Operational guidelines developedØ ECDC providers trainedØ Forged partnership with private sector, CBOs, and NGOs, and GC.

Constraints:Ø Lack of funding represent the single most important risk of sustainable program.

Education Sector Management: The objective of the component is to enhance the performance of the education sector through restructuring the Department of State for Education, in line with the master plan; develop and operationalise a fully integrated education, financial and personnel management and information system within DOSE

Ø Through funding from DfID, an EMIS was developed and fully operational by 2001. The system included Personnel, Statistical and Financial modules. The personnel and statistical modules were providing up-to-date information until 2002/03 academic year. The PMO were in the end relying on EMIS to update their data on the education personnel. A GIS was also developed as part of the EMIS to facilitate the school mapping exercise. The ICT programme has a nationwide coverage and consist of; advise, internet connections, virus alerts and updates, training troubleshooting, website designing and development of ICT curricula teaching in schools.

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Computerization of the accounts section of the department was envisage and later drop as plans are under way to introduce IFMIS within governments’ accounting system.

Ø ICT policy and implementation strategy for the sector developed.

Ø Strengthen the capacity of the PIU to become the DOSE Projects Co-ordination Unit

Design and implement staff appraisal and development programme and Teachers and Education Sector Personnel.

Ø As part of the DfID funded project, a staff appraisal system was designed and implemented. Appraisal booklets were designed for teachers, middle management and senior management. An appraisal exercise was conducted in 2002 and 2003. The results of the appraisal were used as part of the scores for the promotions in 2003. The appraisal exercise has not been conducted since due to logistical and financial reasons. The development of the system did not include a standardisation of appraisal which is critical if assessment results are to be used in decision making.

Constraints:Ø Reviewed and harmonized, existing ICT & Computer Literacy Syllabuses and the national ICT policy.Ø Conduct an impact assessment study of the ICT programmeØ Maintenance and regular update of the DoSE websiteØ Institutionalised and sustainable public-private partnerships in school-based ICT programme to resolve the power and technical problems.Ø Make use of ICT potentials in teaching and learning environment.Ø Network the sector ICT system within IFMIS.

Non Formal Education (NFE) Component:

The objective of the Component was to increase the adult literacy rate by expanding the provision of literacy facilities through a strategy of government/ private sector partnership.

Achievements:Ø Establish principles and procedures for government/private sector partnershipØ All activities set under this column were accomplished and a procedural manual (1998 edition –GAM 96/002 Integrated Functional Literacy Project Especially for Women and Girls) which contained among other things, a Sub-Project Eligibility Criteria and a Sub-Project Proposal Format. Monitoring indicators and instruments for various levels were also developed.

Ø Expand adult literacy and post literacy programmes – A baseline survey report (EFA 2000) Assessment Report on literacy rates produced.

Unaccomplished:Ø Since the year 2000 to date no baseline survey was conducted to provide reliable data on

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the number of adults made functionally literate each year.

Ø A post literacy strategy was not developed, this was envisaged on the 2nd phase of the IFLP but due to administrative changes in UNDP the project was not renewed.

Main Constraints:Ø Limited number of eligible literacy providers,

Ø Capacities of literacy providers/CBOs have not been adequately strengthened to handle additional interventions and demand for literacy;

Ø Inadequate provision of teaching/learning facilities;

Ø High drop-out rate - most participants were enrolled during the last 6 – 13 months of the project which does not allow enough time to complete the literacy cycle of 300 contact hours;

Ø The life span of the project was too short for any meaningful social change;

Ø Inadequate monitoring and supervision;

Ø Lack of data management systems.

Sustainability: Ø The program is sustainable following introduction of changes made in for e.g. decentralized service delivery, drafting of a comprehensive national literacy policy, and partnership with more literacy providers strengthened based on the set eligibility criteria.

Lessons drawn:Ø A participatory and a consultative project management style is needed for better project implementation;Ø Incorporation of income generation activities and access to micro credit scheme to enhance learner motivation and retention is a necessity;Ø Increased commitment by government and other partners to eradicate illiteracy;

Mid-term reviews during project period should be encouragedØ Inter-agency co-operation and collaboration in literacy should be encouragedØ Capacity building at grassroots level in required for programme sustainabilityØ The development of a post-literacy strategy for the retention of skills learnt in literacy and to prevent relapse into illiteracy is a necessity;Ø Capacity building programmes for literacy providers for better programme implementation.Ø Capacity building for ANFU personnel to minimize coordination gaps will be an advantage.

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Project Coordination:The Project Implementation Unit was transform to a Project Coordinating Unit to better reflect it’s role coordinating activities of implementing Stakeholder Agencies, donor coordination and management of framework contracts.Ø The PCU following a Cabinet Directive setting projects’ staff emoluments experienced high staff turnover resulting to reduced capacity. It is crucial for Cabinet be lobbied to withdraw the directive to attract quality and competent project staff and retain them for long.Ø Low capacity at the levels of implementing Agencies in drawing up programme plans, programme implementations and feedback reporting hindered overall project performance.

Financial Management:The PCU-DoSE have a well establish financial management system having reasonable in-house financial capacity to maintain and sustain the accounting system. Disbursement chain turnaround time is quite reasonable and the Bank’s Client Connection link helpful in tracking claims through the approval stages and when payments are effected.

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