Basic Education (Girls) Project · 31 May 1999 31 May 1999 None 31 July 2005 28 January 2008 1 1% per annum 40 years 10 years None . ii 9. Disbursements a. Dates Initial Disbursement

Project Number: 29288 Loan Number: 1621 July 2008

Lao People’s Democratic Republic: Basic Education (Girls) Project

Completion Report

CURRENCY EQUIVALENTS

Currency Unit – kip (KN)

At Appraisal At Project Completion 30 April 1998 31 July 2007

KN1.00 = $0.000419 $0.000104 $1.00 = KN2,383.50 KN9,550

ABBREVIATIONS

CCED – committee for community education and development DEB – district education bureau DNFE – Department of Non-Formal Education EA – executing agency EMIS – education management information system EQIP – Education Quality Improvement Project GDP – gross domestic product GEMEU – Gender and Ethnic Minorities Education Unit Lao PDR – Lao People’s Democratic Republic MOE – Ministry of Education NGO – nongovernment organization NRIES – National Research Institute for Educational Science PES – provincial education service PWG – project working group RRP – report and recommendation of the President TA – technical assistance TTC – teacher training center

NOTES (i) The fiscal year (FY) of the Government ends on 30 September. FY before a

calendar year denotes the year in which the fiscal year ends, e.g., FY2008 ends on 30 September 2008.

(ii) In this report, “$” refers to US dollars

Vice President Director General Director Team leader Team member

C. Lawrence Greenwood, Jr. Operations 2 A. Thapan, Southeast Asia Department (SERD) G.H. Kim, Lao Resident Mission (LRM), SERD K. Chanthy, Senior Project Implementation Officer, LRM, SERD S. Souannavong, Assistant Project Analyst, LRM, SERD

iii

CONTENTS

Page

BASIC DATA i

I. PROJECT DESCRIPTION 1

II. EVALUATION OF DESIGN AND IMPLEMENTATION 2 A. Relevance of Design and Formulation 2 B. Project Outputs 4 C. Project Costs 7 D. Disbursements 7 E. Project Schedule 7 F. Implementation Arrangements 7 G. Conditions and Covenants 8 H. Consultant Recruitment and Procurement 9 I. Performance of Consultants, Contractors, and Suppliers 9 J. Performance of the Borrower and the Executing Agency 9 K. Performance of the Asian Development Bank 10

III. EVALUATION OF PERFORMANCE 10 A. Relevance 10 B. Effectiveness in Achieving Outcome 11 C. Efficiency in Achieving Outcome and Outputs 13 D. Preliminary Assessment of Sustainability 13 E. Impact 14

IV. OVERALL ASSESSMENT AND RECOMMENDATIONS 14 A. Overall Assessment 14 B. Lessons 15 C. Recommendations 16

APPENDIXES 1. Project Framework 2. Actual Enrolment Under the Project Schools 2 a. Table 1: Actual National Enrollment for Basic Education by Province Table 2: Actual National Enrollment for Secondary Education by Province 3. Government Expenditure on Primary and Secondary Education by Year (2002–2008) 4. Project Schools by District and Province 5. Appraisal and Actual Project Costs 6. Project Loan Disbursement 7. Compliance with Project Covenants 8. Details of Specialist and Consultant Utilization 9. Details of Civil Works 10. Details of Staff Development 11. Details of Project Equipment

BASIC DATA A. Loan Identification 1. Country 2. Loan Number 3. Project Title 4. Borrower 5. Executing Agency 6. Amount of Loan 7. Project Completion Report

Number

Lao People’s Democratic Republic 1621 Basic Education (Girls) Project Ministry of Finance Ministry of Education SDR14,898,000 PCR:LAO 1040

B. Loan Data 1. Appraisal – Date Started – Date Completed 2. Loan Negotiations – Date Started – Date Completed 3. Date of Board Approval 4. Date of Loan Agreement 5. Date of Loan Effectiveness – In Loan Agreement – Actual – Number of Extensions 6. Closing Date – In Loan Agreement – Actual – Number of Extensions 7. Terms of Loan – Interest Rate – Maturity (number of years) – Grace Period (number of years) 8. Terms of Relending (if any) – Interest Rate – Maturity (number of years) – Grace Period (number of years) – Second Step Borrower

16 March 1998 2 April 1998 20 May 1998 22 May 1998 25 June 1998 15 December 1998 31 May 1999 31 May 1999 None 31 July 2005 28 January 2008 1 1% per annum 40 years 10 years None

ii

9. Disbursements a. Dates Initial Disbursement

20 January 2000

Final Disbursement

9 October 2007

Time Interval

7.7 years

Effective Date

31 May 1999

Original Closing Date

31 July 2005

Time Interval

6.2 years

b. Amount ($) Category or Subloan

Original

Allocation

Last Revised

Allocation

Amount

Canceled

Net Amount

Available

Amount

Disbursed

Undisbursed

Balance Civil Works 8,203,787 9,645,325 187,708 9,458,617 9,458,617 0

Equipment and Furniture 3,135,312 2,517,883 86,432 2,431,451 2,431,451 0

Vehicles, Bicycles 408,201 475,614 9,778 466,162 466,162 0

Staff Development 418,429 1,884,775 147,038 1,737,737 1,737,737 0

Consulting Services 1,496,940 3,735,342 128,671 3,606,671 3,606,671 0

Learning Materials 518,238 1,929,353 70,277 1,859,076 1,859,076 0

Project Implementation operation & maintenance

84,845 304,759 17,454 287,305 287,305 0

Studies 562,611 292,322 7,165 285,157 285,157 0

Unallocated 4,482,553 10,255 10,255 0.000 0.000 0

Service Charge 689,084 782,606 309,351 473,255 473,255 0

Total 20,000,000 21,578,234 974,129 20,605,431 20,605,431 0

10. Local Costs (Financed) - Amount ($ million) 10.7 - Percent of Local Costs 32.0 - Percent of Total Cost 61.0 C. Project Data

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

Foreign Exchange Cost 10.8 11.9 Local Currency Cost 22.2 22.7 Total 33.0 34.6

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2. Financing Plan ($ million)

Cost Appraisal Estimate Actual Implementation Costs Borrower/Community Financed 8.7 9.0 ADB Financed 20.0 20.6 AusAID 4.3 5.0 Total 33.0 34.6 IDC Costs Borrower Financed ADB Financed Other External Financing Total ADB = Asian Development Bank, IDC = interest during construction. 3. Cost Breakdown by Project Component ($)

Component Appraisal Estimate Actual Civil Works 8,203,787 9,458,617 Equipment and Furniture 3,135,312 2,431,451 Vehicles, Bicycles 408,201 466,162 Staff Development 418,429 1,737,737 Consulting Services 1,496,940 3,606,671 Learning Materials 518,238 1,859,076 Project Implementation operation & maintenance 84,845 287,305 Studies 562,611 285,157 Unallocated 4,482,553 0 Service Charge 689,084 473,255

Total 20,000,000 20,605,431

4. Project Schedule

Item Appraisal Estimate Actual Date of Contract with Consultants Q2 1999 Q2 2000

Completion of Engineering Designs Q3 1999 Q4 2000 Civil Works Contract Q4 1999 Q3 2000 Date of Award Q4 1999 Q4 2000 Completion of Work Q2 2004 Q2 2007 Equipment and Supplies Q3 1999 Q4 2001 Dates First Procurement Q3 1999 Q4 2001 Last Procurement Q4 1999 Q1 2007 Completion of Equipment Installation Q4 1999 Q2 2002 Start of Operations Q1 2000 Q2 2000 Completion of Tests and Commissioning Q1 2000 Q2 2000 Beginning of Start-Up Q1 2000 Q2 2000 Other Milestones Q = quarter

iv

5. Project Performance Report Ratings

Ratings Implementation Period

Development Objectives

Implementation Progress

From 1 February to 31 December 2000 Satisfactory Satisfactory From 1 January to 31 December 2001 Satisfactory Satisfactory From 1 January to 31 December 2002 Satisfactory Satisfactory From 1 January to 31 December 2003 Satisfactory Satisfactory From 1 January to 31 December 2004 Satisfactory Satisfactory From 1 January to 31 December 2005 Satisfactory Satisfactory From 1 January to 31 December 2006 Satisfactory Satisfactory From 1 January to 31 July 2007 Satisfactory Satisfactory D. Data on Asian Development Bank Missions

Name of Mission

Date

No. of Persons

No. of Person-Days

Specialization of Members

Inception Mission 22–25 Mar 1999 2 4 g, k

Special Loan Administration 29 Nov–2 Dec 1999 2 4 g, k

Loan Review 28 May–1 Jun 2000 1 5 g

Loan Review 4–7 Dec 2000 1 4 g

Loan Review 13–18 May 2001 1 6 g

Loan Review 10–16 Nov 2001 1 7 g

Midterm Review 12–23 Aug 2002 2 20 g. k

Loan Review 27 Jan–6 Feb 2004 1 22 g

Loan Review 4–9 Oct 2004 2 10 g, h

Loan Review 21 Mar–1 Apr 2005 2 16 g, h

Loan Review 20–28 Apr 2006 2 18 h, k

Loan Review 14–17 Nov 2006 2 8 h, k

Special Loan Administration 3 Mar 2007 1 6 h

Loan Review 23–28 Apr 2007 1 6 h,

PCR Mission 6–14 Mar 2008 3 8 h, k PCR = project completion report, a- engineer, b-financial analyst, c-counsel, d-economist, e-procurement specialist, f-control officer, g- programs officer, h-project officer, i-project implementation officer, j-natural resource specialist, k-project analyst

Mekong River

Mek

ong

River

Gulf of Tonkin

Kenthao

Xanakham

Boten

Paklay

Thongmixai

Phiang

Xaignabouli

Beng

Houn

Pakbeng

Viangphoukha

Houayxay

Meung

Tonpheung

Hongsa

Phonxai

Viangkham

Xai

Namo

Phongsali

Samphan

Mai

Khoa

Boun Tai

Boun Nua

Gnot-Ou

Louang-Namtha

Sing

Long

Nga

Nale

La

NgoyNambak

PakxengPak-Ou

Louangphrabang

Kasi

Vangviang

Xaisomboun

VIENTIANE

Hom

PhonhongThoulakhom

Keo-Oudom

Thathom

Borikhan

PakxanPakkading Khamkeut

Viangthong

Hinboun Nakay

Thakhek

Gnommalat

Kaysonphomvihan Xonbouri

Songkhon

Thapangthong

Phin

XeponPhalanxai

Outhoumphon

Champhon

Toumlan

Vapi

Ta-Oy

Salavan

Pakxong

Champasak

Soukhouma

Khong

Mounlapamok

Phouvong

Sanxai

XaisetthaSamakkhixai

Kalum

Lamam Dakchung

Thateng

Pakxe

Xanasomboun

Bachiangchareunsouk

Phonthong

Khongxedon

Sanamxai

Samouay

Nong

Vilabouri

Mahaxai

Xaibouathong

Boualapha

Xaibouri

XebangfaiNongbok

Atsaphon

Pek

Phoukout

Kham

Nonghet

Phaxai

Viengxai

Sopbao

Et

Xiangkho

Xam-Nua

Houa-Muang

Viengthong

Xam-Tai

Nan

Phoukhoun

KhopXianghon

Ngeun

Lakhonpheng

Pha-Oudom

PakthaChomphet

Xiang-Ngeun

Thaphabat

Sangthong

SikhottabongXaisettha

XaithaniNaxaythong

Hatxayfong

HinheupFuang

Mok-Mai

Khoun

Lao-Ngam

Pathoumphon

Met

Atsaphangthong

Xaiphouthong

Mai Pak-Ngum

Chanthabouri

Sisattanak

PHONGSALI

HOUAPHAN

ATTAPUCHAMPASAK

LOUANG-NAMTHA

BOKEO

OUDOMXAI

LOUANGPHRABANG

XIANGKHOUANG

BOLIKHAMXAY

VIENTIANE

XAIGNABOULI

VIENTIANEMUNICIPAL

KHAMMOUAN

SAVANNAKHET

SALAVAN XEKONG

PEOPLE'S REPUBLIC OF

CHINA

VIET NAM

THAILAND

MYA

NM

AR

CAMBODIA

Phase I District

Phase II District

Primary Teacher Training School

Teacher Training College

National Capital

Provincial Capital

City/Town

District Boundary

Provincial Boundary

International Boundary

Boundaries are not necessarily authoritative.

LAO PEOPLE'S DEMOCRATIC REPUBLIC

BASIC EDUCATION (GIRLS) PROJECT(as completed)

500

Kilometers

100

N

08-1018 EG

106 00'Eo

106 00'Eo102 00'Eo

102 00'Eo

16 00'No 16 00'No

20 00'No 20 00'No

I. PROJECT DESCRIPTION

1. The Government of the Lao People’s Democratic Republic (Lao PDR) has followed a program of socioeconomic reform, including increased investment in human resources development, dating back to the 1990s. 1 The Asian Development Bank (ADB) undertook an education sector review in 1989, and its major findings featured in a review of Lao PDR education in 1993.2 In this period ADB also assisted the Government with the preparation of projects in support of the sector, including the first Education Quality Improvement Project (EQIP 1)3 that raised the capacity of the Ministry of Education (MOE) to prepare policies and for forward planning. In 1996, an ADB-funded regional study on Education of Women in Asia4 highlighted the lack of educational opportunities for girls in the Lao PDR. As a result of these findings the Government requested project preparatory technical assistance (TA) for the Basic Education (Girls) Project,5 with the development objective of bringing more women into the socioeconomic mainstream by progressively improving their educational levels. 2. The Basic Education (Girls) Project was approved on 25 June 1998 for SDR14,898,000 ($20 million equivalent) and became effective on 31 May 1999. The project’s immediate objective was to expand access to primary education for girls in ethnic areas6 by (i) providing primary educational facilities in 50 districts and strengthening the capacity at central and provincial levels to plan, manage, and implement school construction and associated development programs; and (ii) promoting community participation in school management so as to increase enrollment and retention of pupils. To address these objectives, a wide-ranging but comprehensive project was designed to be implemented in two 3-year phases. The scope of the project comprised three main components. 3. Component 1. The expanded access and improved retention component was designed to address the issues caused by the remote location of many rural ethic groups. Eighty six percent of the population was engaged in rural subsistence farming, but with 40% of all rural roads impassable during the rainy season, many villages remained isolated for up to 4 months every year. Many villages had no local primary schools and ethnic people living in the remoter, often mountainous areas were the most deprived. Girls in particular suffered from being denied local access to primary education, resulting in female literacy rates of only 8% among ethnic groups such as the Akha and Hmong and compared to a national literacy rate of 43%. Through services from local contractors, the Project would construct and equip with furniture and basic teaching aids a total of 375 new multigrade primary schools and 50 complete five-classroom schools, and construct 50 district education bureaus (DEBs). Working through the Gender and Ethnic Minorities Education Unit (GEMEU), the Department of Non-Formal Education (DNFE), and the Lao Women’s Union, the Project would mobilize village-based committees for community education and development (CCEDs) which would prepare action plans, assist contractors with construction, and assume subsequent responsibility for maintenance of project schools. Targeted assistance to poorer community families would also be provided through allocated project funds, managed

1 Ministry of Education. 2000. Lao PDR Education Development Plan 1996–2000. Vientiane 2 ADB. 1993. Lao People’s Democratic Republic - Education in Asia and Pacific Series. Vol.1. Manila. 3 ADB. 1991. Report and Recommendation of the President to the Board Directors to Lao People’s Democratic Republic

for the First Education Quality Improvement Project. Manila. Loan No. 1103-LAO(SF) for $13.3 million, approved 26 September 1991

4 ADB. 1992. Technical Assistance to Asia for the Education of Women in Asia. Manila TA No. 5513 REG, approved 04 December 1992 for $500.000

5 ADB. 1996. Technical Assistance to the Lao people’s Democratic Republic for the Women’s Education Project. Manila TA No 2554, approved 23 April 1996 for $$380,000

6 Boys would also benefit from the provisions of the Basic Education (Girls) Project.

2

locally by community leaders and appointed CCEDs to provide clothes, shoes, pens, and notebooks to needy children. 4. Component 2. The improved relevance, quality, and efficiency component had four subcomponents. New curricula would be adapted to facilitate multigrade teaching in two-classroom schools, provide support to the teaching of Lao language, and introduce materials designed to meet the needs of local life-skills in participating communities, with the particular needs of female students in mind. Support for teachers and school principals would be provided through in-service training opportunities aimed at improving knowledge and pedagogical skills of approximately 4,000 staff. To this end, 50 additional teacher training advisers would be prepared to deliver in-service training and support to teachers in the schools where they worked. Pre-service teacher training, in particular the recruitment and preparation of 300 teachers (mainly women from ethnic communities), would be undertaken at three selected teacher training centers (TTCs) previously supported by EQIP 1. Following consultation and agreement between the Government, ADB, and AusAID at the time of appraisal, component 2 was financed by AusAID. 5. Component 3. The strengthened management systems component had two subcomponents. The first was intended to improve the MOE’s educational management information system (EMIS), and the second would provide administrative and management support at national, provincial, and district levels through training and supportive hardware. Additional inputs would also introduce best practices through programs of in-house training. The updated project framework is shown in Appendix 1.

II. EVALUATION OF DESIGN AND IMPLEMENTATION

A. Relevance of Design and Formulation

6. At appraisal the design of the Basic Education (Girls) Project proved relevant to the objectives of the Government’s 5-year development plans for 1995–1999 and 2000–2004, which stressed the importance of developing human resources, particularly those in rural areas. It also supported MOE's Education Strategic Vision7 which identified the importance of access, quality, and relevance, emphasizing the need to invest in increased access to education in rural and ethnic areas, raise enrolment rates for girls, and construct rural primary schools. The project design also supported ADB’s Country Assistance Plan in 1989 8 which highlighted the importance of (i) developing rural infrastructure, particularly targeting interventions at the poorest areas; and (ii) developing basic education and promoting gender equity in educational opportunities. There are more than 49 official ethnic groups in the Lao PDR, many living in the remoter rural and often mountainous areas. The original project design foresaw interventions in ethnic communities across all 18 provinces nationwide, but after lengthy negotiations at project start-up, this approach was found to be logistically and administratively difficult to implement. In addition to the problems associated with difficult terrain, poor access roads, and inadequate telecommunications links, the initial implementation was designed for provincial and district levels but no allowance was made for local officials who had no experience of project implementation, no knowledge of ADB guidelines, or had little or no English language facility, while no pre-project training was available. Recognizing that operational and transportation costs would absorb a major portion of project funds, agreement was reached by the Government, ADB, and AusAID that project interventions would be limited to the 11 provinces and 52 districts showing the highest incidence of poverty, the largest ethnic populations, and the lowest female enrolments. In this way the Project was able to stay within its original budget but still deliver the same number of new schools (see also paras. 10 and 44). 7 Ministry of Education. 2000. Education Strategic Vision up to the year 2020.Vientiane. 8 ADB. 1989. Country Assistance Plan 1989- 1994 for the Lao People’s Democratic Republic. Manila.

3

7. In particular, the Project supported the MOE’s target of universal admission to primary schools by 2010 and the conversion of all incomplete schools into multigrade or single-grade schools with a minimum of one school for every two villages. A total of 512 schools were completed by the Project (20.5% above appraisal targets), adding more than 47,000 pupils to the basic education system during the project period and accounting for 22% of the overall increase in primary school enrolments9 (see Appendix 2 for actual enrollment under project schools, and Appendix 2a. Table 1: actual national enrollment for basic education by province, and Table 2: actual national enrollment for secondary education by province, including the national rise in numbers of female students at all levels of the education system). Under AusAID funding and development of curricula, the development and in-service teacher upgrading envisaged in component 2 was accomplished. The need for more comprehensive practical micro-teaching techniques in local model schools to supplement provisions for pre-service teacher preparation was not foreseen in the project design. Additional project funds were required for additional support to the three selected TTCs to provide further inputs for the preparation of ethnic teachers. Additional project funds were also required to provide project schools with core textbooks and teaching guides in addition to the project-designed texts and learning materials. The project assisted the MOE with the more effective management of its budget for basic educational services, particularly those handled by the provincial education service (PES) and DEB (see Appendix 3 for details of Government expenditure on primary education). Government policy to introduce decentralization of all management functions in 2000 coincided with the start of the project, but difficulties were encountered by this change of culture. The project design underestimated the problems of introducing decentralized management and delivery at a time when communications and logistics within many of the poorest areas of the country were undeveloped. Roads to some project sites were either nonexistent or impassable during the long rainy season. These problems were compounded by an initial lack of English language facility at all levels of the project and slow communications with ADB due to initial low levels of telecommunications technology. 8. The project design contained important features to improve school access, promote community involvement, and raise the quality of primary school curricula. The promotion of community involvement in clearing construction sites, conveying building materials, monitoring the progress of contractors, and subsequent maintenance of school facilities were innovative concepts. So too were the development and introduction of relevant local life-skills into the school curriculum, and the targeted support for disadvantaged community families through the disbursement of funds provided under the project. These activities also supported the Government’s decentralization and community development policies. Problems were encountered with disbursement of funds for these purposes, due to an absence of local banking services and accounting procedures. These problems took time to overcome. 9. Gathering demographic data required for identifying school sites and determining classroom numbers was the responsibility of provincial and district offices and village CCEDs. Data was acquired, in often difficult conditions, but with little or no training on data analysis the significance of rising birth rates and numbers of pre-school children in a given community was not recognized, resulting in subsequent overcrowding in some schools. Objectively verifiable indicators for assessing project progress, quantifying changes in enrolment, or gauging success of certain components—such as policy support, management, and capacity building—were not identified in the project’s design and monitoring framework. Benefit monitoring and evaluation were also not included. This makes it difficult to assess project efficiency and effectiveness. Evidence shows

9 MOE maintained a running total of project school enrollments, but in the absence of an operational education

management information system (EMIS), details of individual school enrollments were assumed into overall provincial totals.

4

that assumptions on the continued extent of community and MOE support were valid, and while the identified risk posed by construction in remote mountainous areas did cause delays, it did not reduce the overall number of schools built by the project, although it did extend the time required for completion. Other risks concerning the sustainability of the project and the continued competence and retention of ethnic teachers were resolved by the comprehensive design of the project which covered both supply and demand sides of primary education in general, and the servicing of remote ethnic people in particular. B. Project Outputs

1. Expanded Access and Improved Retention 10. Physical Access. The Project was scheduled to support construction of an estimated 375 new multigrade primary schools, and although this was exceeded by 21% and 455 schools were constructed, the project restricted its operations to 11 instead of 18 provinces (para. 6). The project’s target of 50 complete five-classroom schools was also exceeded by 14%, with 57 schools constructed. Only 43 DEB offices were constructed from a target of 50, the remaining seven being completed under alternative donor finance. DEB offices were provided with furniture and equipment, including one computer per office. The design of buildings and supply of furniture matched local needs, although more than one computer and printer is now required in those offices where electricity supplies are not subject to interruptions. 11. A simple standardized school design, based on a concrete footing with treated wooden walls and a composite-material ridged roof was prepared by the project and could be extended to accommodate either two or three classrooms in multigrade schools with a central teachers’ room and store, or complete five-classroom schools. Sites were to be donated or otherwise provided by each selected village community. There were delays in commencing construction of schools due to the late recruitment of the international school architect and further lengthy delays were caused by poor or even nonexistent roads to many project sites, compounded by lengthy rainy seasons. Initial communications between the project coordination unit and ADB also proved difficult due in part to slow telecommunications links and language problems. Communities cleared and fenced sites and assisted local contractors to convey materials onto sites, sometimes overland for distances of over 20 km by foot. The appointment of local contractors generally worked well, except in the remotest areas where PES oversight capacity was at its lowest. The standard basic design for all schools proved successful with good natural ventilation and light. The use of only partially treated timber in some schools may prove problematic if additional anti-termite coatings are not applied periodically. Local construction and delivery of standard design hardwood furniture proved not to be a problem and quality improved as the MOE, PES, and DEB gained experience in quality control. Difficulties were encountered with the provision of water supplies and the school architect found 53% of water supplies not functioning in a 2004 survey of nine provinces. In response, the Project hired local specialist teams which visited problem sites and either improved existing systems or devised alternative solutions, including covered rainwater storage tanks for hilltop locations and boreholes for lowland schools. For some communities, school water supplies are the only local water source, making it difficult to restrict supplies, even if this results in insufficient water for school toilets during the dry season. A list of Project schools by district and province is shown in Appendix 4. 12. Community Mobilization and Targeted Assistance. There were some initial delays in this innovative subcomponent caused by the absence of district banking facilities. In addition to logistical problems of transferring and distributing cash, there were no procedures for tracking grant disbursement at this level, and it took time to develop mechanisms that were acceptable to the MOE, the Ministry of Finance, and ADB. In total, $580,100 was disbursed to 869 communities

5

in 11 provinces with between $150 and $250 allocated to each community to support needy, community-selected, family groups. Cooperation with GEMEU, DNFE, and Lao Women Union proved successful, particularly in the early process of creating community awareness prior to construction. Community involvement continued throughout the Project and evidence shows that many communities continued to provide financial support to needy families by creating their own CCED funds or alternative forms of practical support after the Project closed, showing that despite its slow uncertain start this subcomponent was successfully completed.

2. Improved Relevance, Quality, and Efficiency 13. Component 2 of the project was financed through AusAID as part of a parallel financing arrangement approved by the Government of the Lao PDR and ADB. Active coordination between component 2 and other project subcomponents meant that the project’s outputs were mostly delivered satisfactorily. Additional funds to support staff development and provide unforeseen support for project TTCs were met from ADB project funds. Approximately 3 weeks of overseas fellowships for 28 key officials took place at relevant Australian institutions under AusAID funding. 14. Supplementary Materials and Adapted Curricula. This subcomponent was successful, commencing with the National Research Institute for Educational Science (NRIES) undertaking a base-line survey of requirements for multigrade teaching, the teaching of Lao language, and relevant life-skills. The project did not specify the number of student learning materials or teacher guides required, so it was left to RIES to identify a requirement for 23 titles, including mathematics, which had been left out of the original project design. These new titles supplemented national core texts and were supposed to address gender and local concerns from an ethnic perspective. However, the list included several life-skill titles to cover subjects relevant to local community living. Observations from project schools indicate that wider coverage of issues such as health, sanitation, hygiene, raising of livestock and plants, cooking, and sewing should have been covered in more detail. All subjects are taught in every school, however subjects aimed at girls are largely dependent on the background of the individual teacher. MOE later admitted that there was a shortage of core textbooks and teacher guides, and requested ADB fund the printing and distribution of 630,000 textbooks, including those in support of the national curricula, extending coverage beyond the limit of project schools. ADB also financed reprinting of supplementary books as there were insufficient funds available under AusAID financing. 15. In-Service Support for Teachers and School Principals. This was a successful subcomponent in which two parallel programs offered in-service support for teacher-trainers, teachers, and principals in Project schools, as well as for teachers and principals in incomplete schools and multigrade schools within the Project’s 52 districts. All three pedagogical components were covered, including multigrade teaching, the teaching of Lao language, and delivery of life-skills. It was envisaged that 4,000 teachers and school principals would receive in-service training within the 11 project provinces. A total of 4,112 teachers and school principals (an increase of 2.8%) had participated in a series of 1-week programs by the end 2004, despite severe logistical problems caused by poor roads and intermittent communications. Late into the project ADB supported a 2-week program of refresher training on multigrade training, setting up one model multigrade primary school in each province which could be used as a demonstration center for the training and retraining of basic-education teachers. Post-project evidence shows that in-service teacher support is continuing. 16. Expanded Professional Supervision for Teachers. The project envisaged the preparation of a cadre of 50 master trainers and pedagogical advisers which would in turn prepare an unspecified number of itinerant in-service teacher-trainers capable of relaying pedagogical

6

inputs and technical advice on subjects specific to ethnic and gender issues within the project schools. There were delays of 2 years as integration of this subcomponent with subcomponent 2(a)—design and distribution of supporting textbooks—took place. Twenty six master trainers and pedagogical advisers from the Department of General Education and PES were prepared, and a total of 260 teacher-trainers from project districts received 4-week programs enabling them to operate within the existing integrated teacher support scheme operated by MOE though DEBs. The subcomponent was successful and is still continuing, although schools nearest DEB offices appear to get more frequent visits than those in remoter locations. 17. Training Teacher Educators and the Recruitment of Minority Teachers. The Project was designed to improve pre-service preparation of teachers at three TTCs previously rehabilitated by the ADB EQIP 1. In addition, 300 mostly female students from ethnic groups were to be recruited and given incentives such as scholarships, payment of dormitory fees, and additional tutoring if needed. On completion of their studies these students were to teach ethnic groups in project schools and were automatically promoted to become permanent teachers. An innovative approach was adopted, introducing a variety of mixed pre-service and in-service training programs to accommodate students with less than 8 years of schooling. A community-based semester was also included to encourage students to maintain contact with their ethnic roots. This very positive model proved to be quite expensive and may not be sustainable in the format utilized by the project, and changes have subsequently been introduced by MOE. A total of 486 (326 female) ethnic student teachers were financed by the project, an increase of 62% over appraisal. MOE records show no significant wastage in the supply of teachers and this component was therefore mostly successful.

3. Strengthened Management Systems and Capacity 18. Management Support Systems. The Project envisaged further development of MOE’s EMIS, based on developments previously introduced by the World Bank’s Education Development Program 110 and institutionalized by the Statistics and Planning Division within the Department of Planning and Cooperation. A pilot district-based program should have been operational in year 1 of the project, but EMIS implementation was delayed due to the promotion of two incompatible EMIS systems by separate donor-assisted projects, while MOE had yet to decide on a preferred uniform information technology approach. Although the project’s EMIS international consultant was fielded, further project expenditure on this component was halted in December 2005. Further development of the EMIS was paused because (i) MOE was waiting for the national information technology policy and direction to be approved by the prime minister's office, (ii) there was no consensus agreement on staff information formalized and installed in the EMIS, and (iii) MOE did not have qualified staff to manage the local area network system (LANs). 19. Education Management. This subcomponent successfully delivered capacity building across a range of core management skills to 1,014 school principals, and MOE, PES, and DEB staff. A review of job functions was completed and training given in five identified key areas including basic management and administration. The project supported 2 weeks of overseas training on management, EMIS, multigrade teaching, and monitoring and evaluation for MOE and provincial officials. Given the Government’s commitment to decentralization, combined with a need to oversee the project’s provincial and district activities, resources were never adequate to cover the scale of local management needed at PES, DEB, and school levels. Inputs in areas such as data analysis, strategic planning, budgeting, and basic project implementation and monitoring were

10 World Bank,1993. Staff Appraisal Report to the Lao People’s Democratic Republic for Education Development

Program 1. Washington. Available: http://www.worldbank.org

7

not adequately covered at local levels. A total of 80 officials were given 2-week fellowship training in neighboring countries. C. Project Costs

20. At appraisal the project cost was estimated at $33 million. ADB’s share was estimated at $20 million (61%), AusAID’s share at $4.3 million (13%), and the Government and community share at $8.7 million (26%). The actual project cost was $34.6 million, of which ADB financed $20.6 million (60%), AusAID financed $5.0 (14%), and the Government financed $9.0 million (26%). Of the total project costs of $20.6 million, civil works were $9.5 million, equipment and furniture was $ 2.4 million, vehicle costs were $0.5 million, the cost of learning materials including printing and distribution of textbooks and instructional materials was $1.9 million, staff development was $1.7 million, consulting services were $3.6 million, studies and project operation and maintenance was $0.5 million, and service charges were $0.5 million. Apart from the project cost, there were in-kind contributions including land acquisition and community support costs of $3.2 million. Detailed cost estimates at appraisal and the actual costs incurred are shown in Appendix 5. D. Disbursements

21. Disbursements were a bit slower than anticipated due to lack of familiarity with ADB disbursement procedures and limited project accounting experience at both central and provincial levels. The consultants were recruited about 12 months after loan effectiveness; this delay resulted in the slower disbursements. An imprest account was opened under the project with Banque Pour Le Commerce Exterieur Lao in Vientiane. At loan closing on 28 January 2008, disbursements totaled $20.6 million, or 103% of the original loan amount of $20 million. While the imprest account system was adopted for most of the smaller items, payment of major contracts used direct payment from the loan account. The intended cumulative disbursement rate was for annual drawdowns from 2000 to 2007 of 8%, 11%, 16%, 43%, 56%, 75%, 84%, and 100% compared to the achieved disbursement rate of 4%, 8%,18%, 29%, 46%, 73%, 81%, and 100%. The summary of disbursement is shown in Appendix 6. E. Project Schedule

22. The Project was approved on 25 June 1998 and the loan was declared effective on 31 May 1999. The project was originally intended for implementation over 5 years, but at the Government’s request it was extended for 2 years in July 2005 and closed on 28 January 2008. The extension reflects ADB’s constructive approach to the logistical problems faced including poor roads and difficult communications with many project sites, and the sheer scale and complexity of the overall project. Civil works activities and procurement slowed from the outset (paras. 10–11). Staff development and consulting services were also delayed, mainly due to changes in the implementation of component 1 as the project reduced the number of operational provinces (para. 6) and as the overall period of project delivery was extended. Component 2, funded by AusAID, also encountered delays caused by logistical and communication problems which slowed the process of moving around project sites and made the enrolment of participants for training programs difficult. Due to a conflict between alternative EMIS approaches using incompatible Lao fonts and a shortage of qualified staff to handle this activity project, inputs in subcomponent 3(a) were discontinued.

8

F. Implementation Arrangements

23. MOE adequately fulfilled its role as the Executing Agency (EA) as envisaged during appraisal, making use of its experience from previous ADB projects, particularly EQIP 1. The director of the Department of General Education chaired a project working group (PWG) that was responsible for overall supervision of project implementation. Detailed planning, monitoring, and coordination with provinces and districts were delegated to the project support unit (PSU), which comprised GEMEU staff with full support from local contractual staff. Disbursement and financial reporting were done by the Department of Finance. Engineers were also recruited as part of a local firm appointed to oversee and monitor progress with school construction. Day-to-day implementation was undertaken by relevant MOE departments and by the PES and DEBs. An existing project steering committee, chaired by the minister of the MOE, was tasked with coordinating activities with other Government departments. 24. Continuity of key officials at all levels of the EA helped to maintain overall effective project implementation, although initial problems with linguistics, logistics, communication, and unfamiliarity with ADB procedures caused delays in processing contracts and appointing consultants and contractors. Statements to ADB were often behind schedule, particularly in the early stages of the project, with frequent reminders required. International consultants from Sinclair Knight Merz, Australia were fielded for components 1 and 3 in the second quarter of 2000, approximately 12 months behind schedule, and the scheduled completion of this contract was extended from June 2005 to July 2007. The PWG proved to be an effective body and counterpart ownership of the project was evidenced throughout, and further extended through the involvement of the PES, DEBs, and the many CCEDs. Component 2, executed by AusAID, followed the same implementation process and reported favorably on its effectiveness. G. Conditions and Covenants

25. Of the 39 identified loan covenants, 38 were complied with satisfactorily while only one covenant was partly complied with (para. 18). The latter relates to the installation of a functioning EMIS which was intended to provide effective data transfer from DEBs to the PES, and to provide the MOE with up-to-date information about the overall primary school system, including data about project schools. The failure to come to a timely agreement on a uniform EMIS approach meant little progress was made on this covenant, creating an unfortunate break in the flow of information. The appointment of a responsible project officer at the ADB Lao Resident Mission improved the process of compliance with many specific covenants. Through proactive administrative support from the MOE, PES, and DEBs, covenants relating to the numbers of schools to be constructed, the numbers of teachers to be recruited and/or retrained (particularly women from ethnic groups), the increased enrolment of girls, the active participation and continued support of local ethnic communities, and the provision of updated curriculum and support materials, were either met in full or exceeded. The report and recommendation of the President (RRP) failed to include a covenant specifying who should be responsible for providing core textbooks, as opposed to new project-designed texts, in all project schools and this oversight was not resolved until late in the project. Full details regarding compliance with project covenants are shown in Appendix 7. H. Related Technical Assistance

26. Project preparatory TA 11 was completed in June 1997. It identified three key issues inhibiting the development of girls education: (i) lack of access to primary schooling, particularly for 11 ADB .1996. Technical Assistance to the Lao People’s Democratic Republic for the LAO: Women’s Education Project.

Manila TA No. 2557, approved April 1996 for $380,000.

9

ethnic children in remote rural areas where families were unlikely to send girls for education outside their villages; (ii) shortcomings in current learning environments which lacked relevance to traditional village-based needs, difficulty in recruiting local people as village school teachers or retaining qualified teachers, poor quality teaching, lack of experience with multigraded classrooms resulting in an unwillingness to build or staff primary schools where there were low enrolments, and lack of good quality learning materials; and (iii) the need for greater community involvement at the village level so as to deliver support for local schools and provide assistance to those most in need. Subsequently all these issues were incorporated into the project design, the only variation being the reduced scope from 18 to 11 provinces and the involvement of AusAID in the delivery of component 2. No further TA was associated with the project. I. Consultant Recruitment and Procurement

27. At appraisal, consulting services were estimated at 115 person-months of international consultants (46 person-months to be financed by ADB and 69 by AusAID) with a total of 141 person-months of national consultants (105 person-months financed by ADB and 36 by AusAID). For components 1 and 3, a total of seven international consultants were recruited between 1999 and 2005 from Sinclair Knight Merz, Australia for a total of 112.2 person-months in accordance with ADB's Guidelines on the Use of Consultants (1998 and 2002). The additional time was mainly due to extensions for the post of project planning, monitoring, and coordination (team leader) from 36 person-months to 70 person-months, the school architect from 3 person-months to 15.5 person-months, and the appointment of an accounting specialist to the newly created PSU. National consultants were utilized in the delivery of some management training programs. Under component 2, AusAID employed the services of a consulting firm (Illawarra Technology Corporation) which was responsible for fielding both international and national consultants in accordance with AusAID’s recruitment guidelines. An additional 327 person-months were also allocated for national contract staff to undertake materials design, writing, and validation, which appears to have worked well. Appendix 8 gives details of international and national consultancies at appraisal and actual. 28. A total of 162 civil works contracts were awarded through national competitive bidding for the construction of 455 multigrade schools, 57 complete five-classroom schools, and 43 DEB offices, and there were nine separate tenders for school and DEB office furniture in accordance with ADB’s Procurement Guidelines (2000, 2002 and 2005). Contracts were awarded in six phases. Despite lengthy delays due to logistical problems and problems arising from contractors from different provinces who were not always aware of local issues, combined with officials at MOE and PES who were unused to the scale and geographic scope of the project, only three contractors were disqualified and the contracts re-tendered. A separate contractor to design water supplies to project schools and a TTC was an additional unforeseen input at the time of project appraisal. Appendix 9 gives a detailed breakdown of civil works, Appendix 10 details staff development, and Appendix 11 details project equipment J. Performance of Consultants, Contractors, and Suppliers

29. Consultants recruited for components 1 and 3 performed satisfactorily as reported in their Performance Evaluation Report. International consultants recruited by AusAID for component 2 were also deemed satisfactory. 12 However, unrelated to the consultants’ personal ability or performance, overall issues of linguistics, logistics, and a weakness in the provision of initial data analysis inhibited some aspects of the consultants’ delivery. The performance of civil works contractors was satisfactory in the prevailing logistical circumstances and so too was the 12 AusAID. 2007. Independent Completion Report, Laos-Australia Basic Education Project. August 2007

10

performance of local contractors for school and DEB furniture. Most of the books and visual materials supplied were of a particularly high standard and were highly relevant. K. Performance of the Borrower and the Executing Agency

30. The performance of both the borrower and executing agency was satisfactory. The MOE was committed throughout the project, while the PWG provided strong, proactive management and guidance in all matters of practical project implementation. Setting up the PSU under the PWG proved most effective. Although delays were encountered as a result of difficult logistics, climate, and initial unfamiliarity with the size and scope of the project, these were eventually overcome. A stronger emphasis and improved preparation relating to data analysis and its significance to planning would have been beneficial. L. Performance of the Asian Development Bank

31. The Government considered ADB’s performance satisfactory. Following initial delays and difficulties in establishing effective communications with ADB, delegation of project management to the ADB Lao Resident Mission proved effective. ADB fielded 11 review missions (122 staff-days) to monitor implementation throughout the project period. ADB extended the loan once in April 2005 following a request from the Government, based mostly on unavoidable lengthy implementation delays. The Government and the EA were appreciative of the fact that ADB recognized such problems and they maintained close relationships with ADB throughout implementation. However, ADB did not revise the project design and monitoring framework to reflect changes to project implementation and timing following the approval of an extension. The external issues affecting project implementation featured regularly in ADB mission reports and in the midterm review, and were the basis for agreeing to the project extension. 32. Project preparation missions and the project preparatory TA provided opportunities for an initial policy dialogue with the Government, which jointly identified the priority requirements of the primary education subsector and provided opportunities to explore ways of increasing the enrollment of rural girls from remotely located ethnic communities and the support needed by their local communities. Early attention, targeted at developing the capacity of MOE and provincial education staff to analyze and determine the significance of community demographic data, could have avoided the current problem of overcrowded classrooms in some schools by highlighting requirements for additional space during construction. In addition, ADB’s underestimation of local difficulties such as (i) lack of communications technology, (ii) remoteness and physical isolation of some sites due to poor infrastructure, (iii) the limited capacity of many provincial and district officials, and (iv) nonexistent district banking facilities, were all factors that contributed to delays in project implementation.

III. EVALUATION OF PERFORMANCE13

A. Relevance

33. The Project is assessed as highly relevant with respect to its development objective. Through the construction of 455 multigrade and 57 complete five-classroom schools and 43 DEB offices, together with development of curricula and teacher training, the project has added 13 For project loans, Operation Evaluation Department (OED) guidelines now use four core criteria for the rating of

performance. For program loans, there are six criteria. A text section assessing the (i) contribution of program loans to institutional development, and (ii) program loan impact should be added following preliminary assessment of sustainability. See OED‘s Guidelines for Preparing Performance Evaluations Reports, available at http://www.adb.org/Documents/Guidelines/Evaluation/PPER-PSO/default.asp

11

significant capacity to the educational system and made substantial increases to overall enrolment within primary education. By targeting remote rural ethnic communities, the project has fulfilled its task of supporting the priorities of both the Government of the Lao PDR and the MOE by assisting in the development of basic education for girls, a process which will ultimately bring more women into the socioeconomic mainstream by progressively improving their educational levels. It has also helped MOE to move towards its Millennium Development Goals14 and the targets set by its commitment to Education for All15. B. Effectiveness in Achieving Outcome

34. The project was highly effective in achieving its outcome. Through the construction of additional primary schools in remote rural areas populated mainly by ethnic communities, and putting in place an effective support system, the project substantially increased the enrollment of girls by just over 22,000 over the project period. Records also show that an additional 25,000 boys were enrolled in project schools. The Project Survey 2006 (conducted in six project districts) showed that net enrollment for girls in project schools increased significantly from 66% in 2002 to 88% in 2006; net enrollment rates for boys rose from 67% to 87% in the same period. The survival ratio for grade 5 girls was 12% in 2003, but this had increased to 54% in 2006, while for boys the rate increased from 16% to 55% in the same period. The project developed more effective curricula to support the rural nature of the schools, and recruited, trained, and/or developed pedagogical and professional skills of teachers, school principals, and support staff. A total of 512 schools were constructed, an increase of approximately 20% over the target set at appraisal. Evidence shows that these were built with the full support of local communities which cleared sites, constructed perimeter fences, often carrying timber and other materials over long distances in difficult terrain, and who for the most part have continued to maintain the fabric of the schools because of their enthusiastic support for educational services in their villages. By setting up a targeted system of financial support to be administered by each community, the project made available a total of between $150 and $250 per community per year after school construction was completed, enabling children (particularly girls) from poorer families to attend school through the purchase of clothes, shoes, pens, and paper. Many communities are continuing to offer similar approaches after the closure of project funds, often using in-kind support rather than cash. 35. Evidence from the MOE16 shows that in the ethnic districts served by project schools, the average annual growth rate of enrollments for both girls and boys was 10.6% in the period 1999/2000–2006/0717, with the rise in girls’ enrollments reaching 6.8%. This compares with an overall average annual growth rate of only 2.2% (1.5% for girls) in Lao populated districts outside the project. Further MOE data shows the project facilitated an increased enrollment of approximately 22,000 girls, starting from a very low base-line in 1999/2000. Equally important is the data relating to survival through to grade 3 and grade 5. Between 2000 and 2007 approximately 17,000 additional girls stayed in project schools to make the transfer from grade 3 to grade 4, and an additional 5,000 girls made it through to the end of grade 5. It is significant that communities have seen the advantage of young girls acquiring literacy and numeracy skills and an understanding of Lao language and therefore wanting to keep their girls in school, despite pressing family commitments and previous obligations to assist with agricultural pursuits. Even transfer rates to lower secondary education appear to show a similar positive trend, although at a much reduced

14 United National Development Program (UNDP). 2002. United Nations Development Assistance Frame Work for Lao

people’s Democratic Republic. Vientiane. 15 United Nations Educational, Scientific and Cultural organization (UNESCO). 2005. Education for all national plan of

Action 2003-2015. Bangkok. 16 Ministry of Education. 2007. Project Completion Report, Basic Education (Girls) Project. Vientiane 17 Statistic from Ministry of Education. 2008. Statistics from Ministry of Education Bulletin. Vientiane.

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scale because of the distances girls need to travel (in the absence of quality roads or transportation) to reach the relatively fewer secondary schools. 36. To support the school construction program the project planned an overhaul of primary curricula targeting the more effective use of multigrade classrooms, the teaching of Lao, and the development of a series of life-skills—which was meant to provide relevant teaching materials in support of locally used skills and stress the needs of young girls in particular. Twenty three curricula and supportive materials were developed, although only two texts targeted multigrade teaching, and only four were related to life-skills; Lao language had nine supportive texts and mathematics six. A small sample of schools visited indicate the success of teaching Lao as a second language because most ethnic children from grade 3 upwards were able to read, write, and speak Lao fluently. However, many teachers seemed to be uncertain of the potential significance of life-skills and appeared to be professionally unprepared to take a practical role in its teaching. Little thought seems to have been given to the specific needs of young girls in grade 5 as they approached puberty, and practical aids such as vegetable gardens or basic cooking utensils were not in evidence. Overall, the project designed and/or printed and distributed a total of approximately 630,000 learning materials, and learning guides in attractive and durable formats were designed and/or circulated to 2,900 schools in 11 project provinces. Most of the texts appear to be well used and appreciated by both teachers and students. 37. Ambitious targets for both pre-service and in-service training of teachers were exceeded numerically, and in this respect the project appears effective. Four hundred and eighty six ethnic teachers (326 of them women) were given initial preparation in relevant pedagogy at three TTCs, 296 teacher trainers were trained, 4,051 teachers were taught how to use the new curricula materials and approaches, and 77 pedagogical advisers were recruited and trained to provide on-site advisory services to multigrade schools. In addition, techniques of micro-teaching using local model schools were introduced to the three project-supported TTCs and the 11 project provinces. The reality is that although the numbers are greater than the targets set at appraisal, problems with language, logistics, and unfamiliarity with new pedagogical approaches required that longer training periods should have been provided to all levels of staff if they were to meet expected standards of achievement. Although most appointed staff appear to have remained in-post, the cost and time of maintaining pre-service and in-service training at project levels is unlikely to prove sustainable and some downsizing of the Project’s generous provisions is likely to take place. 38. The Project was expected to have installed a fully functioning EMIS to provide data to monitor progress and guide the MOE in further developments of the primary education system. Delays in start-up and eventual failure to complete this subcomponent adversely affected the quantity, quality, and scope of relevant data, which together with logistical obstacles, slowed the project’s overall effectiveness and efficiency. No formal benefit monitoring and evaluation system was included in project design and this adversely affected the ability of the EA, ADB, and AusAID to accurately assess progress or comment on impact. Improvements to educational management at all levels from the MOE to the PES and DEBs and down to school principals originally required a program of development and capacity building for over 1,000 staff. Decisions by the Government in 2000 to introduce a nationwide policy of decentralization brought about an urgency and an increased requirement for training and capacity building that had not been anticipated at appraisal, even though the project was itself based on decentralized principles. One hundred and forty key staff were to have been given a range of management skills over a period of 173 person-months, amounting to about 1 month per staff member, and 1,014 staff were to be given capacity building for a total of 575 person-months, amounting to approximately 2 weeks per person. Despite a budget increase of over 20% to $1.832 million, an increased total of 2,754 key staff were given specific management skills but for a reduced average period of only 1 week per person. Capacity-

13

building programs, lasting on average only 1.5 weeks, were given to 3,335 staff. Start-up was slow and it was 2005 before training reached down to provincial levels. While numerically the subcomponent appears effective, all levels of the MOE are convinced that management training should have been more comprehensive and of longer duration, covering in greater depth subjects such as planning and data analysis, budgeting and accounting, and monitoring and evaluation. C. Efficiency in Achieving Outcome and Outputs

39. On balance, the project is assessed efficient, although at appraisal no detailed economic analysis was undertaken, the RRP mainly dealing with overall project costs and benefits. Three major benefits were identified: (i) increasing the number of female primary students (22,000) so that some would feed through into secondary and higher education to eventually enter the workforce in support of the emerging market economy; (ii) contributing to improved health, lower fertility rates, and postponed marriages amongst girls in ethnic communities; and (iii) developing more appropriate, relevant curricula and better-trained teaching staff for service in remoter primary schools. Although the project can demonstrate the existence of relevant curricula and trained staff, it is too early to show whether the other socioeconomic benefits will come to pass. Current evidence would indicate that very few ethnic girls, and certainly not those from the remoter villages, will be likely to enter the formal workforce in the foreseeable future but will remain engaged in local community pursuits. 40. Internal Efficiency. The RRP expected to demonstrate internal efficiency by showing increased enrolment rates (in particular the number of girls progressing to grade 5) and by assisting in the reduction of high cycle costs and lowering the cost to the Government of each primary graduate. Delays in installing an effective EMIS has inhibited effective project monitoring and in the absence of a benefit monitoring and evaluation system it has proven difficult to accurately assess the internal efficiency of project schools with respect to unit costs. Evidence shows that enrolments and retention rates have risen considerably in project schools, with an overall increase in excess of 47,000 boys and girls during 2000–2006, although this increase is less than the potential currently offered by the project’s classroom and teacher capacity. Current total enrolment in all 512 project schools is 47,000 students (20,000 of whom are female).18 It is noted that the project’s comprehensive delivery system, designed to promote community support and prepare and maintain teachers’ subject and pedagogical competence, is still functioning. Some aspects, such as the grants available to needy households, have become the responsibility of the local community. 41. External Efficiency. It is not possible to quantify the efficiency of investment in project schools based on available evidence. Longitudinal tracer studies will be required in order to follow up on the future of primary school graduates and to see how many stayed in their villages, how they fared, and how many proceeded to the outside world of work. D. Preliminary Assessment of Sustainability

42. There are significant indications that investments made under the project are relevant to both overall government socioeconomic policy and to the more precise objectives of the MOE. The project is therefore most likely to be sustainable, even if financial and infrastructure investments may not be maintained at project levels. The current Five-Year Plan (2005–2010) outlines the Government’s vision for promoting a decentralized approach to development, prioritizes the need to enhance future prospects for ethnic communities, highlights the requirement to increase female participation in all aspects of society and the economy, and gives high priority to developing 18 Ministry of Education. Project data base. Vientiane. November 2006.

14

education. At the same time, the MOE expects to further enhance enrolments, access, and quality in basic education, strengthening the participation of girls in primary education, improving curricula relevancy, and raising the professional capability of teachers and educational managers at all levels. Further evidence of sustainability comes from the significant contribution of the Government in support of primary education, which is about 29% of the overall annual budget allocated for education in 2007/08 (KN312 billion, or $34 million equivalent). 19 Evidence that CCEDs are continuing to function after project completion and that they are maintaining their commitment to support their local schools and needy local families is perhaps the strongest evidence of project sustainability. E. Impact

43. The project has met its intended impact by successfully expanding the physical capacity of the primary education system and increasing the enrolments of girls coming from ethnic communities into basic education. The quality of available basic education in the primary schools constructed by the project in selected ethnic communities, as assessed by the available information on the academic performance of students at the completion of grades 3 and 5, seems to indicate an improvement in overall quality. There is a need, however, to focus on the provision of more relevant life-skills suitable to local community needs and to the requirements of girls in particular. There was a considerable impact made on both the pre-service and in-service training and upgrading of teachers and other education professionals by the introduction of new pedagogical approaches featuring student-centered and competency-based learning. In addition, the project has certainly contributed to the wider concept of community ownership and active participation in the local education process, which may well prove to be its greatest impact. There can be no doubt that the Project, fully supported by the MOE’s firm commitment, has done much to further the development of primary education across all provinces. The lessons with respect to community involvement, curriculum and materials development, and teacher training have proved to have replication potential beyond the project schools. Meanwhile, the initial increase in enrolments has continued and the substantial increase in children’s access to primary education will be the lasting impact of this successful Project.

IV. OVERALL ASSESSMENT AND RECOMMENDATIONS

A. Overall Assessment

44. According to ADB’s criteria for overall assessment of a project, the project is rated “successful”. It was well conceived and designed and its overall scope and components remained relevant throughout implementation. It was successful in enhancing the physical capacity of the basic education system with respect to access to primary schools by girls from ethnic communities, and despite formidable logistical problems it constructed more than the specified number of multigrade and complete five-classroom primary schools. Overall it improved curricula and provided more than the predicted number of pre-service and in-service trained teachers and supporting educational staff. However, for logistical and communication reasons, the overall coverage of the project had to be reduced from 18 to 11 provinces (para. 6) while the duration of the project had to be extended by 2 years and several consultancy inputs had to be extended to cover the scope and complexity of the Project’s components. Forty four percent of project financing was directed towards the construction of the 512 project schools, including the 455 schools that were to pilot the multigrade concept. Community ownership of and involvement with the project has shown every sign of being continued after completion. While these achievements are impressive, greater attention now needs to be paid to ensuring that gains made in curriculum development can 19 Ministry of Education. Government budget on education. Vientiane May 2008.

15

be taken forward by further development of relevant learning materials and simple supportive equipment suited to actual community life-skills, focusing more on the specific needs of girls, especially those in grade 5. Time allocated for management training never met the duration envisaged by the RRP, and every effort should be made to ensure that essential skills in data analysis and planning, budgeting and accounting, and monitoring and evaluation, are provided through future training. B. Lessons

45. Major lessons drawn from the project include the following:

(i) Recruitment and trained local ethnic teachers. The project foresaw a problem of

teacher shortage in remote and ethnic areas by introducing an innovative approach to recruit and train local ethnic teachers where the schools were provided. This is considered a most successful activity as there is evidence showing that more than 95% of project ethnic teachers remain teaching in their villages after the project completed in 2007, and it shows that they are happy to continue teaching. The MOE has adopted this approach nationwide with some adjustments to ensure there is sufficient funds to support it.

(ii) Project indicators focused more on quantity than quality. Although the initial

project objective was clearly concerned with raising the quality of primary education, particularly for ethnic girls, this concern was never articulated in terms of qualitative indicators during the project design. All available indicators were set to measure quantitative achievements, such as the number of schools to be constructed and number of teaching staff to be trained. Contractors for both construction and staff development and curriculum development worked to these indicators and exceeded their targets. Qualitative indicators, describing the levels of knowledge and pedagogical skills required for each teacher or staff member, or a more precise statement of the content to be covered in new learning materials, or the expected levels to be achieved by curriculum development, were not included. Their presence would have enhanced the progress made in these areas.

(iii) Monitoring and evaluation did not feature in the project design and even the

EMIS failed to provide supporting information. Benefit monitoring and evaluation did not appear as formal issues in the project’s preparation. Although the PWG and project coordination unit did maintain sound overall management control of the Project, the absence of clear time lines and milestones made detailed project monitoring and evaluation impossible. Although quantitative targets were met and exceeded, the intended results of the project would have been better managed if an effective benefit monitoring and evaluation system had been installed from the outset.

(iii) A more realistic time scale and more limited scope and geographical coverage

should have been reflected at the time of project design. The Project exceeded its original targets by building more schools and training more staff than anticipated, but this was only achieved through an extension of project duration and by supportive and proactive officials at all levels of the MOE, PES, and DEBs, as well as the CCEDs. Issues such as difficult logistics, adverse climate, poor communications, and an inadequate understanding of ADB procedures should have

16

been better addressed in the initial project design. A sharper focused project on fewer provinces would have permitted a more thorough trialing of the project’s innovative approaches before they were replicated on a wider scale.

C. Recommendations

1. Project Related

(i) Future monitoring. MOE should develop a benefit monitoring and evaluation system capable of undertaking some assessment of internal and external efficiency so as to determine the extent to which the project should be further replicated. Longitudinal tracer studies should be planned to follow up on the future lifestyle and economic potential of girls who attended project schools.

(ii) Covenants. Covenants relating to the detailed provisions for pre-service training for

teachers and the recruitment of ethnic teachers may need to be revised to reflect a more sustainable level of funding support.

(iii) Additional assistance. Staff development should be strengthened to achieve its

goals in terms of in-depth support for key activities such as planning, financial management, and monitoring and evaluation. Some aspects of curriculum development also require additional inputs for designing more relevant life-skills. Additional technical assistance in support of these activities is required.

2. General

(i) Inclusion of quality indicators in project framework. To enhance project monitoring and improve delivery of intended outcomes, future projects should include adequate quality indicators alongside quantitative measures of achievement, and both should be reviewed and adjusted as necessary during the midterm review.

(ii) Inclusion of benefit monitoring and evaluation in original project design. To

enable the EA and ADB to assess project impact, effectiveness, and efficiency, a functioning monitoring and evaluation system should form an integral part of initial project design.

(iii) Project delegation 20 with adequate capacity development and resource

allocation. To enhance effectiveness of Project Delegation to Resident Mission, a more systematic transition arrangement, adequate resource allocation, necessary training for local staff and well-functioning communication facilities should be provided.

20 This was the first project delegation to ADB Lao Resident Mission

Appendix 1 17

PROJECT FRAMEWORK

Design Summary

Performance Indicators/Targets

Monitoring Mechanisms

Assumptions and Risks

Goal Provide all primary school children with equal access to quality primary education and an environment that encourages them to attend school regularly and successfully completed the 5-year cycle

• Increase net enrollment

ratio to 92% by 2010 • Increase completion rate

to 79% by 2010 • Reduce drop-out rate to

5% by 2010

• National Education Action

Plan • Review mission • Project progress report

Assumptions • Basic education continues to

be government priority • Most development partners

continue their support of basic education

Risk • Language barriers

Purpose Contribute to improvement in equitable access, relevance, quality, efficiency, and management of primary education in 50 districts

Equity • Increase net enrollment

ratio for girls to 92% by 2010

• Increase completion rate to 77% for girls and 82% for boys by 2010

• Reduce drop-out rate for girls and boys to 5% by 2010

• 486 (326 female) ethnic teachers recruited

Quality • Child-centered approach

applied to all project schools

• Teacher’s competence improved

• Measurement of student performance

• Provision of sufficient teaching and learning materials

Equity • Completion of annual

operational plans and annual operational reviews

• Strengthening the capacity of education officials from MOE to local level

• Project progress report • Annual survey • MOE/PES statistics • Annual workshop • Performance assessment

reports • Monitoring reports • Annual operational

review

Assumptions • Parents acknowledge the

importance of education • Capacity of education officials

and teachers improved Risk • Poor families reluctant to

send their children to school

Outputs 1. Expanded access and improved retention 1.1 Provision of educational facilities

• 57 five-classroom and

455 multigrade schools constructed and equipped

• 43 DEBs built and equipped

• 512 village authority

• PES/ECDM/consultant

report • Project progress report • Annual operational

reviews

Assumptions • No issue on land acquisition • Community actively

participated • Limited communication

channel • Introduction of decentralized

management

18 Appendix 1

Design Summary

Performance Indicators/Targets

Monitoring Mechanisms

Assumptions and Risks

1.2 Community mobilization and targeted assistance grant 2. Improved relevance, quality, and efficiency 2.1 Supplementary materials and adapted curricula 2.2 In-service support for teachers and school principals

members trained in school construction supervision, and maintenance

• Community mobilization

integrated into the strategy, action plan from national to district level

• Printed posters including project school, sanitation program, and school maintenance provided to all project schools

• Committee for community education and development established in all project schools

• $150 to $250 targeted assistance grant provided to 869 villages

• Provision of 630,000

core textbooks and 630,549 supplementary books to 2,901 schools

• Provision of teaching and learning kits to 2,000 schools

• Developed supplementary textbooks including multigrade teaching, Lao language, and life-skills

• Studies and training on gender and ethnicity to all education officials

• Adapt the TTC curriculum and materials for training ethnic remote teacher program

• Developed and printed

training materials • 500 VCD copies on

multigrade teaching produced

• 4,112 teachers (514 school principals) received in-service training

• Project teachers received refresher training on multigrade teaching

• Assessment report • Assistance grant

monitoring report

• Gender studies report • MOE/PES statistics

• Annual operational review • Project progress reports

• Unavailability of district bank facilities

• Unreliable statistics Assumption • Provincial and district officials

not familiar with ADB guidelines and requirements

Risk • Shortage of qualified financial

officials and accountants at provincial and district levels

Assumption • MOE’s strategy on printing

and provision of core textbooks in place

Risk • No financial support for

printing and provision of textbooks and teaching and learning materials

Assumptions • Sufficient time and funds

allocated to support the activity

• Teachers actively participated the training

Appendix 1 19

Design Summary

Performance Indicators/Targets

Monitoring Mechanisms

Assumptions and Risks

2.3 Expanded professional supervision for teachers 2.4 Ethnic minority teachers recruited 3. Improved management efficiencies 3.1 MOE institutional capacity enhanced 3.2 PES and DEBs strengthened 3.3 Establish LAN network and education management information system

• 260 teacher trainers received 4 weeks training

• 77 ( 33 ethnic female) new pedagogical advisers recruited and trained in supervising teachers

• 436 provincial pedagogical advisers and more than 500 school principals trained in supervising teachers in multigrade teaching

• 486 (326 female) ethnic

teachers recruited and trained

• Timely submission of

annual operational plan and budget

• Establishment of basic EMIS and monitoring system for the project

• Key officials in 11 PESs and 52 DEBs trained on management, and construction supervision

• Basic EMIS set up connected from MOE to PES and DEBs

• Training on basic computer and data collection for PES and DEB officials

• Procurement of more than 200 computers

• Installed LAN network connected to all departments

• Support training for all senior and technical officials in the MOE

• Project progress report • National workshop report

• Project progress report • Monitoring report • Annual operational review

• Annual operational review • Project progress report

• Project progress report

Assumption • Availability of primary and

secondary graduates in beneficiary communities

Risk • Shortage of qualified

education officials at all levels Assumptions • Unavailability of electricity in

some project districts • Shortage of qualified

education officials at provincial and district levels

Assumptions • Sufficient financial support • Information technology policy

in place Risk • Shortage of information

technology staff ADB = , DEB = district education bureau, ECDM = education construction design and management, EMIS = education management information system, LAN = , MOE = , PES = provincial education services, TTC = teacher training college, VCD = .

20 Appendix 2

Total Female Total Female

Phongsaly 3857 1660 4121 1942

Houaphan 3396 1720 4397 2159

Oudomxai 5179 2463 8241 4126

Luangnamtha 3137 1296 3916 1644

Xiengkhouang 4651 2061 5514 2999

Vientiane 2023 1338 2880 1753

Borikhamxay 2820 1221 3356 1426

Khammouane 2712 1333 3846 1702

Saravane 2280 885 3537 1226

Sekong 3034 1355 3975 1614

Attapeu 2152 918 3459 1375

Total 35241 16250 47242 21966

Source: Project data base 2006, Ministry of Education

Actual Enrollment under the Project schools

Province2003 2006

Appendix 2 a 21

From 1999 - 2006No Provinces

Toal Female Total Female Total Female Total Female Total Female1 Vientiane Capital 92,683 44,208 91,439 43,612 86,217 40,880 81,035 38,313 77,777 36,857

2 Phongsaly 21,416 8,874 20,438 8,401 22,336 9,391 25,355 10,403 27,268 11,420

3 Luangnamtha 18,804 7,870 18,491 7,717 20,905 8,958 23,650 10,604 24,366 10,965

4 Oudomxai 34,001 13,593 35,645 14,726 41,189 17,854 49,083 22,642 49,690 23,402

5 Bokeo 20,920 8,970 22,134 9,638 22,512 9,528 23,883 10,345 24,300 10,612

6 Luangprabang 64,953 28,440 60,996 26,742 68,235 30,148 70,549 31,976 71,616 33,381

7 Houaphanh 45,410 19,327 45,640 19,317 49,769 21,780 53,441 23,677 57,740 26,242

8 Xayabury 58,410 27,366 57,613 26,890 58,035 26,917 55,421 25,640 51,819 23,943

9 Xiengkhouang 44,818 19,778 45,321 19,973 47,419 21,073 45,290 20,575 47,558 22,095

10 Vientiane 62,154 29,181 67,300 31,500 64,532 30,489 63,690 29,752 69,170 32,541

11 Borikhamxai 35,188 16,193 36,258 16,777 41,048 18,969 42,664 19,864 42,371 19,799

12 Khammouane 50,751 23,314 52,549 24,432 55,764 26,267 56,015 26,443 54,720 25,984

13 Savannakhet 113,633 51,598 115,390 52,860 122,422 56,321 124,308 57,469 123,811 57,200

14 Saravane 43,056 18,673 39,543 17,257 49,975 22,149 48,310 21,487 49,795 22,276

15 Xekong 9,660 4,220 10,765 4,779 13,520 6,292 14,453 6,702 15,872 7,393

16 Champasack 90,229 42,508 87,980 41,825 87,039 41,251 87,251 41,340 85,107 40,651

17 Attapeu 13,604 6,197 13,735 6,189 17,084 7,909 17,895 8,299 18,827 8,691

18 Special Zone 11,831 5,404 6,876 3,091 7,299 3,394 8,528 4,062

Total 831,521 375,714 828,113 375,726 875,300 399,570 890,821 409,593 891,807 413,452

1999 2000 2002 2004 2006Total 831,521 828,113 875,300 890,821 891,807

Female 375,714 375,726 399,570 409,593 413,452

Note: Special Zone was merged to Xiengkhouang and Vientiane provinces in early 2006

2004 2006*

Table1 : Actual National Enrolment for Basic Education by Province

1999 2000 2002

Number of Student Enrollment in Primary Education

0

200000

400000

600000

800000

1000000

Total 831521 828113 875300 890821 891807

Female 375714 375726 399570 409593 413452

1999 2000 2002 2004 2006

22 Appendix 2 a

No ProvincesTotal Female Total Female Total Female Total Female Total Female

1 Vientiane Capital 58,241 27,116 62,132 29,029 69,241 32,554 70,254 32,846 406,459 32,021

2 Phongsaly 4,570 2,131 4,552 2,153 5,900 2,818 6,889 3,367 - 3,459

3 Luangnamtha 5,366 2,234 6,198 2,556 8,188 3,431 9,471 4,000 9,455 3,964

4 Oudomxai 6,193 2,147 6,997 2,451 11,042 4,067 13,386 5,084 14,256 5,517

5 Bokeo 5,771 2,242 6,373 2,464 8,083 3,232 9,254 3,722 9,081 3,660

6 Luangprabang 18,879 6,989 17,158 6,670 21,490 8,473 24,822 9,774 26,118 10,387

7 Houaphanh 10,400 3,919 11,760 4,450 14,188 5,504 17,163 6,854 18,609 7,487

8 Xayabury 14,949 5,639 16,645 6,321 21,710 8,696 25,886 10,616 27,150 11,331

9 Xiengkhouang 15,274 6,213 17,135 6,927 21,634 9,199 23,241 10,244 24,313 10,721

10 Vientiane 26,312 10,446 30,168 12,142 34,125 14,198 36,241 15,716 39,861 17,025

11 Borikhamxai 9,814 3,800 11,261 4,379 15,295 6,177 18,402 7,533 19,249 7,945

12 Khammouane 13,225 5,271 15,636 6,373 21,405 8,678 24,324 10,149 23,777 10,072

13 Savannakhet 30,905 13,054 34,254 14,468 39,854 17,187 41,971 18,459 42,010 18,779

14 Saravane 6,134 2,180 7,288 2,537 8,693 3,142 13,229 5,232 13,665 5,366

15 Xekong 1,178 380 1,765 617 2,864 1,015 4,090 1,614 4,381 1,812

16 Champasack 27,946 10,353 29,963 11,476 37,414 14,872 40,225 16,566 39,483 16,692

17 Attapeu 2,699 985 3,315 1,324 4,628 1,767 5,482 2,189 5,676 2,319

18 Special Zone 2,941 825 1,770 539 2,555 888 3,189 1,148

Total 260,797 105,924 284,370 116,876 348,309 145,898 387,519 165,113 723,543 168,557

1999 2000 2002 2004 2006Total 206,797 284,370 348,309 388,044 730,641

Female 105,924 116,876 145,898 165,113 168,557

Table 2: Actual national Enrollment for Secondary Education by ProvinceFrom 1999 -2006

1999 2000 2002 2004 2006

Number of Student Enrollment in Secondary Education

0

100000

200000

300000

400000

500000

600000

700000

800000

Total 206797 284370 348309 388044 730641

Female 105924 116876 145898 165113 168557

1999 2000 2002 2004 2006

23 Appendix 3

billion kipYear Total Budget on Total Percentage Total Percentage

Education Primary LowerSecondary

2002/03 464,185 90,493 19% 33,200 7%

2003/04 597,696 105,542 18% 18434 3%

2004/05 701,650 180,967 26% 32,292 5%

2005/06 1,008,053 169,577 17% 76,137 8%

2006/07 1,248,417 404,590 32% 171,131 14%

2007/08 1,085,452 312,049 29% 33,963 3%Source: Ministry of Education, 2008

Governement Expenditure on Primary and Secondary Education by year2002 - 2007

24 Appendix 4

No. Province District Name No. of schools Total1 Phongsaly Mai 8

Bountai 8Boun Neua 9Khoua 8Phongsaly 9Gnot Ou 9Samphanh 8 59

2 Oudomxai Namor 8La 9Xay 10Beng 13Houn 12Pakbeng 9Nga 8 69

3 Houaphanh Aed 10Sob Bao 9Viengthong 11Viengxay 11Sam Neua 8Sam Tai 10Houa Mueang 10Xiengkor 11 80

4 Luangnamtha Namtha 12Long 10Sing 12Nalae 8Viengphoukha 9 51

5 Xiengkhouang Nonghaed 7Kham 14Khouan 9Mok 8Thathom 9 47

6 Vientiane Saysomboun 11Phoun 8 19

7 Borikhamxay Viengthong 9Khamkeuth 12 21

8 Khammouane Boulapha 9Sebangfai 7Saybouathong 11Nakai 11Gnommalath 11 49

Project Schools by District and Province

Appendix 4 25

No. Province District Name No. of schools Total9 Saravane Samouay 11

Ta Oy 9Toumlan 7Lao ngam 10 37

10 Sekong Dakcheung 11Kaleum 11Tha Teng 11Lamarm 12 45

11 Attapeu Sanamxay 9Phouvong 12Sanxay 14 35Total 512 512

Source: Project Database 2007, Ministry of Education

Project Schools by District and Province

26 Appendix 5

Item Foreign Local Total Foreign Local TotalA. Base Cost1. Civil Works 4.7 3.5 8.2 5.2 4.3 9.52. Equipment/Furniture 2.1 1 3.1 1.6 0.8 2.43. Vehicles and Bicycles 0.4 0 0.4 0.5 0 0.54. Staff Development 0.2 0.2 0.4 0.3 1.4 1.75. Consulting Services 1.1 0.4 1.5 2.2 1.4 3.66. Learning Materials 0.3 0.22 0.52 0.8 1.1 1.97. Implementation and maintenance 0.05 0.03 0.08 0.19 0.09 0.288. Studies 0.31 0.29 0.6 0.11 0.17 0.28

B. Contingencies1. Physical Contingencies 0.6 2.0 2.6 0.0 0.0 0.002. Price Contingencies 0.4 1.5 1.9 0 0 0.00

C. Service Charge 0.7 0 0.7 0.47 0 0.47

Total Cost 10.86 9.14 20 11.4 9.3 20.6

Land Acquisition/Community Support 0 2.9 2.9 0 3.2 3.2

Appraisal ActualAppraisal and Actual Project Costs ($million)

Appendix 6 27

Year Quarter Amount Cumulative Total2000 I 500 500

II 239 739III 003 742IV 0 742

2001 I 004 746II 256 1002III 345 1347IV 190 1537

2002 I 101 1638II 545 2183III 749 2932IV 610 3,542

2003 I 272 3,814 II 640 4,454 III 387 4,841 IV 1,433 6,274

2004 I 737 7,011 II 726 7,737 III 850 8,587 IV 1524 10,111

2205 I 1,088 11,199 II 1,000 12,199 III 2,346 14,545 IV 875 15,420

2006 I 205 15,625 II 242 15,867 III 515 16,382 IV 1044 17,426

2007 I 1,094 18,520 II 150 18,670 III 1,837 20,507 IV 098 20,605

Total 20,605 Source: Loan Financial Information System, March 2008

PROJECT LOAN DISBURSEMENTS($`000)

28 Appendix 7

COVENANTS

No. Covenants Reference Rating Remark 1 Submission of the list of 38 districts and

villages for each district to be selected for inclusion in Phase II

Schedule 3. Para 3

S Complied

2 Submission of the prototype design of schools Schedule 6. Para 6

S 3 models were designed and selected by the EA in consultation with concerned departments

3 Staff of MOE, PES, DEB and the Education Construction Services are trained in planning and supervision of school construction

Schedule 6. Para 7

S Complied

4 Recruitment of two PUCDA staff for each of the 11 provinces within the Project area not covered by the World Bank funded Education Development project

Schedule 6. Para 8

S Most provinces appointed PUCDA staff to work for the project

5 Trained teachers shall be selected and appointed to schools to be constructed under the Project

Schedule 6. Para 10

S 486 ( 326 female) ethnic teachers were trained and appointed

6 Ensure that under NRIES leadership previous pilot studies on the Pedagogical Areas are reviewed, and analyzed and best practices identified.

Schedule 6. Para 16

S Studies conducted Supplementation textbooks and teaching materials developed under the project

7 Ensure that teaching methods, teacher competencies, and standard appropriate for teaching in multi-grade schools and teaching ethnic children, particular girls, will be developed and incorporated into the Project supported in service teacher training programs

Schedule 6, Para 18

S Multi-grade teaching approach developed and included in the curriculum A one year bridging course included in the curriculum for remote and ethnic teacher course

8 Ensure that 4 camera ready teacher guides for the NRIES materials are prepared and ready for use during the specialized in-service and pre-service training program beginning in the second year of Project implementation

Schedule 6. Para 19

S Complied

9 Ensure that (i) the in-service training curricula and teacher training materials are designed to encourage the appropriate use of the NRIES materials; and (ii) teacher trainers are trained in the use of NRIES materials

Schedule 6.Para 20

S Supplementary books to all ethnic schools in 11 project provinces teaching kids developed and provided to all project schools

10 Ensure that about 4,000 teachers are provided training on the use of the NRIES materials and on teaching the Pedagogical Areas

Schedule 6. Para 21

S 4,112 teachers received training

11 Recruitment of 50 additional pedagogical advisors

Schedule 6. Para 22

S 52 additional Pas recruited and 104 Pas received additional training on consolidating knowledge and skills development

12 Ensure that at least 2 specialized training program and sets of training materials for Pas are developed under the Project

Schedule 6. Para 24.

S 2 handbooks developed and trainings completed in January 2003

29 Appendix 7

No. Covenants Reference Rating Remark 13 Ensure that (i) workshops are conducted to

prepare master trainers who will train PAs and school principals to work in multi-grade schools or in ethnic areas

Schedule 6, para 25

S Various workshops conducted and activities competed in April 2002

14 Provision of salary and transportation support for selected Pas, as agreed upon with the Bank and AusAID

Schedule 6, para 26

S Complied

15 Ensure that the training of teacher educators shall include the following:(i) 3 orientation conferences, (ii) in-service teacher education curricula and materials, (iii) trained teacher educators at 3 teacher training colleges, (iv) curricula and materials for teacher training college courses, (iii) 300 mainly female ethnic teachers trainees recruited; (vi) 2 one week vacation courses on the pedagogical areas and on other topics agreed upon between the borrower, the bank and AusAID

Schedule 6, para 27

S Complied all requirements

16 Schedule 6, para. 28: Ensure that criteria for recruiting Teacher Trainees are established. Ensure that Teacher Trainees will be selected yearly, at least 6 months ahead of the start of that year's training program.

Schedule 6,para

S Complied

17 Ensure that (i) enrolled Teacher Trainees are provided with financial and other support, as agreed upon between the Borrower, the Bank and AusAID, (ii) faculty from the selected Teacher Training Colleges is provided honoraria to undertake necessary vacation courses, (iii) parents of the Teacher Trainees sign a contract with the Borrower that their daughters or sons will teach at least 3 years in an ethnic minority school, and (iv) upon completion of their studies, the Teacher Trainees will be provided with teaching posts in multi-grade schools under the Project.

Schedule 6,para 29

S All complied

18 Selection of the districts for the pilot-testing of the district-based computerized information and planning system

Schedule 6, para 30

S Complied

19 At the end of 2 years of mobilization and targeted assistance, the Borrower shall review and evaluate the community mobilization and targeted assistance activities and develop plans, as appropriate, for expanding these activities to other provinces.

Schedule 6, para 13

S Review and evaluation of these activities conducted twice

20 Ensure that the community of each village to benefit from the construction of a school shall contribute to the construction process through the provision of labor.

Schedule 6, para.9

S Villages hired to do some works during the construction

30 Appendix 7

No. Covenants Reference Rating Remark 21 Develop a comprehensive plan, acceptable to

the Bank, for community mobilization and targeted assistance at the national, provincial, district and village levels, during the first year of Project implementation

Schedule 6, para 11

S Complied

22 Ensure that approximately 300 villages in 12 districts of 6 provinces are included in the community mobilization and targeted assistance plans during Phase I

Schedule 6, para 12

S 869 villages received the targeted assistance grant

23 By the end of third year of Project Implementation, the Borrower shall have (i) developed posters and other media appropriate for non- and semi- literate populations encouraging girls' enrollment and retention in schools, (ii) implemented action plans at the village, district, provincial and national levels to enroll and retain children, particularly girls in school, and (iii) implemented plans to provide assistance that relieves households of the high direct costs of sending their children to schools

Schedule 6, para 14

S All complied

24 During Phase I, the Borrower shall pilot-test the Borrower's regulation which permits schools the flexibility to adjust and schedule the school calendar around agricultural activities.

Schedule 6, para 15

S Studies conducted, no adjustment on school calendar required

25 GEMEU shall (i) conduct a comprehensive analysis of the representation of girls and minorities in the primary school curricula, textbooks, and support materials; (ii) generate criteria for analyzing the messages about girls and minorities expressed or implied in texts and images, and apply such criteria to an analysis of existing primary school curricula, textbooks, supplementary instructional materials and teacher support systems; (iii) develop guidelines and recommendations for achieving gender and minority balance in the revisions of curricula, instructional materials and teacher support systems; and (iv) conduct research on factors affecting the retention of girls in school.

Schedule 6, para 17

S All complied

31 Appendix 7

No. Covenants Reference Rating Remark 26 Recruit ethnic minorities and women to serve

as PAs in Project districts, and to ensure that upon successful completion of training, the PAs assume regular duties in their assigned district. The number of additiona PAs trained shall be agreed upon between the Borrower, the Bank and AusAID

Schedule 6, para 23

S Complied

27 The community of each village to benefit from the construction of a school shall contribute to the construction process through the provision of labor.

S Complied

28 By 15 May of each year, starting in 1999, the Borrower shall prepare and submit to the Bank for review an operational plan for the next Fiscal Year

Schedule 6, para 36

S Submission date was revised to 30 September

29 At the end of each year, the Borrower shall prepare an operational review to summarize progress made toward Project objectives and quantifiable and quantitative targets.

Schedule 6, para 37

S Complied

30 Ensure that (i) the EA submits and APA to the bank not later than twelve months after the end of each related fiscal year . The APA should include the auditor's opinion on the use of the Loan proceeds and compliance with the covenants of this loan agreement, the use of the procedures for imprest account and statement of expenditures. (ii) The EA provides the Bank other information concerning such account and financial statements and the audit thereof as the bank shall request from time to time.

Article IV, Section 4.06

S All complied

31 Ensure that emphasis is placed on monitoring system performance against indicators that assess the provision of services to ethnic minorities and girls.

Schedule 6, para 31

S Complied

32 Ensure that selected staff, acceptable to the Bank, are provided comprehensive EMIS monitoring and planning training at MOE during the first year of project implementation, and that an EMIS/planning support program is developed to support their post-training activities.

Schedule 6, para 32:

PS EMIS system developed, but not fully operation

32 Appendix 7

No. Covenants Reference Rating Remark 33 Ensure that expansion of the existing

information system and the development of a comprehensive Project monitoring system will directly support completed and ongoing Education Development Project EMIS activities.

Schedule 6, para 33

PS Project data base developed, but could not link to the EMIS

34 Ensure that baseline studies and surveys for key indicators will be undertaken within 4 months of the Effective Date, as agreed upon with the Bank, and that their results will be used to determine specific targets for the indicators

Schedule 6, para 38

S Baseline survey conducted after the mid-term review Annual survey conducted to assess the performance of the project activities

35 Established, Staffed, and Operating PMU/PIU

S Late complied

36 Fielding of Consultants

S Late complied

37 Ensure that current job descriptions and staff responsibilities will be reviewed at all management levels.

Schedule 6, para 34

S Complied

38 Schedule 6, para. 35: Ensure that the management training for MOE staff will be planned and designed to establish capacities to adequately fulfill 5 management functions: (i) planning and programming education activities and investments, (ii) intra-agency communication and coordination, (iii) resource mobilization, (iv) understanding and assessing accountability, and (v) evaluating decision options

Schedule 6, para. 35

S All complied

39 Midterm Review will be jointly underatken with the Borrower, AusAID and the Bank. The activities to be carried out, and the targets to be achieved during Phase II will be reviewed during the Midterm Review. Adjustments to the design of Phase II and targets to be achieved may be agreed upon between the Borrower, AusAID and the Bank to incorporate lessons learned during Phase I.

Schedule 6, paras 39 to 41:

S Complied

Appendix 8 33

International or

Domestic Plan Actual Plan Actual

Project Planning, Monitoring & Coordination Intl. 36 70 Firm OPCV/SKMSchool Architect Intl. 3 15.4 Firm OPCV/SKMManagement Specialist Intl. 3 8 Firm OPCV/SKMEMIS Designer Intl. 2 3.1 Firm OPCV/SKMEducation Information Analyst Intl. 2 2 Firm OPCV/SKMInternational Accountant Intl. 0 12 Firm OPCV/SKMGEMEU Advsior Intl. 0 1.7 Firm OPCV/SKMMobilization Manager Dom. 24 34 Firm OPCV/SKMEMIS Software & Staff Training Dom. 4 4 Firm OPCV/SKMEducational Planner Dom. 12 12 Firm OPCV/SKMProgram Manager Dom. 24 24 Firm OPCV/SKMInformation Analyst Dom. 6 6 Firm OPCV/SKMLAN Installation & Instruction Dom. 2 3.5 Firm OPCV/SKMOffice Automation & Training Dom. 3 3 Firm OPCV/SKMSurvey Coordination & Analysis EMIS Dom. 12 5.5 Firm OPCV/SKMManagement Training Dom. 12 31 Firm OPCV/SKMFinancial management Specialist Dom. 6 6 Firm OPCV/SKMDomestic accountant Dom. 0 64 Firm OPCV/SKMProject Coordinator PSU Dom. 0 64 Firm OPCV/SKMWater Supply Design, Costing & Supervsion Dom. 0 package Firm LWR

Water Design for TTC Dom 0 package Firm ADRA

Civil Works Supervsion (contract) Dom. 0 package Firm LCGTotal 151 369.2

Person- month Individuak or Firm

Expertise

DETAILS OF SPECIALIST AND CONSULTANT UTILIZATION

34 Appendix 9

No. of No. of No. of5 Classrooms 3 classrooms 2 Classrooms

CentralPhongsaly 5 7 13 39Luangnamtha 3 1 7 42Oudomxay 6 6 28 35Houaphan 6 8 17 55Xiengkhouang 4 11 11 24Vientiane* 3 5 10 4Bolikhamxay 2 3 9 9Khammouane 5 5 12 32Saravan 3 4 9 23Sekong 3 5 8 32Attapeu 3 2 14 19TTCs 3Total 43 57 138 317* Includes two districts that were formerly in Saysomboun Special Zone.

Loan 1621-LAO (SF): Basic Education (Girls) Project

ProvinceNo. of DEB

Civil Works - School and DEB Construction

Appendix 10 35

No Description No. of Person No. of days

1 Asset inventory 203 52 Master trainer on in-service training 260 103 Inservice training 4112 74 Master trainer 44 105 Multi-grade teaching 1531 66 Model school 60 107 Planning and budgeting 38 58 Financial reporting and disbursements 34 59 Using supplementaty books and teaching 120 5

materials10 Community mobilization to education officials 161 7

from central to district levels11 Community mobilization and education grant 2397 10

to benificiary communities12 School construction monitoring to beneficiary 1032 5

communities13 Using computer to education officials from 46 12

central to district levels14 Data collection to education officials from 1554 5

central to district levels15 Training of trainers on school census 342 416 Data collection to project primary teachers 1716 3

Sub-total 13650 109Regional Short Term Trainings

18 Organization Asssessment and 20 10Development

19 Project and Program managemetn 13 1020 Monitoring and evaluation 19 1021 Sustainable construction technics 1 922 Development of education institutions 2 823 Multi-grade pedagogy 7 1024 Gender Policy Development 9 1025 Educational management 6 826 EMIS 3 10

Sub-total 80 80

17 Local Ethnic Teachers 486 4 yearsSource: Project statistics 2007 , Ministry of Education

Long Term trainings

Short term trainings

L1621- Basic Education (Girls) ProjectStaff Development

36 Appendix 11

Provinces Computer PrinterUPS/Voltage

stabilizer Photocopier ScannerDigital

CameraOverHead projector

Central 178 75 77 2 12 1

Phongsaly 9 6 2 2 1 3 1

Luangnamtha 8 6 1 2 1 3 1

Oudomxay 8 6 2 2 1 3 1

Houaphanh 8 6 1 2 1 3 1

Xiengkhouang 8 6 1 2 1 3 1

Vientiane* 8 6 1 2 1 3 1

Borikhamxay 8 6 2 2 1 3 1

Khammouane 8 6 2 2 1 3 1

Saravane 8 6 1 2 1 3 1

Sekong 8 6 2 2 1 3 1

Attapeu 8 6 2 2 1 3 1

Total 267 141 94 24 11 45 12

Other:

12 hub switches for LAN at Central MOE

Software for school design & survey equipment for ECS & PUCDA

Furniture for meeting Room 222 at MOE

Video Cameras, TV, video palyer for each of the 3 project TTCs.

TV for DNFE at Central MOE

Two fax for PES

Loan 1621-LAO (SF): Basic Education (Girls) ProjectProcurement of Office Equipment

Summary of Interdepartmental comments Loan 1621-LAO (SF): Basic Education (Girls) Project

Comments Action Taken Ministry of Education (Director of Department of Planning and Cooperation; and Head of PIU) The draft PCR was well prepared. We have no comments except that a successful approach on recruitment and trained local ethnic teacher should be indicated in the lesson learned. Figures related number of schools, teachers and education staff were trained under the project would be double checked and confirmed.

This approach was already spelled out under the project lesson learned. All figures were revised based on the updated information provided by MOE.

CTLA (Oliver Domagas) We have reviewed the draft PCR and outline below comments on basic data for your consideration. Revised the basic data, disbursement figure by category and total project cost to ensure that all figures are consistent with the LFIS and amounts presented throughout draft PCR.

Revise all information under the basic data, dates for loan approval and effective. Disbursement figures were revised in accordance with the LFIS. All figures are consistent throughout the report

COSO (Muhammad Ingratubun) Detailed explanation why it was difficult to implement the project activities; Specified year and version of ADB Guidelines on recruitment of consultant and procurements.

Detailed justification were provided in para 6 and design and monitoring framework. Information on version and year were added into the following paragraphs Para.27. ADB guideline on the used to recruit consultant 1998 and 2002 Para. 28. ADB guideline on procurement 2000,2002, and 2005

SESS ( Hirosato Yasushi ) Further explanation why the project restricted its activities in 11 provinces, instead of 18.

Revised para. 6: The project was restricted to 11 provinces, instead of 18 provinces considering that (i) the project’s geographical coverage was very wide and thus logistical

Para 42. The Government’s financial support to primary education seems to be a bit low.

and administrative arrangement was difficult to implement (ii) operational and transportation cost would absorb a major portion of the project fund; (iii) the problems associated with difficult terrain, poor access road, and inadequate telecommunication links were significant; (iii) provincial and district officials had no experience of project implementation, no knowledge of ADB guidelines and had very little or no English language facility; (iv) MOE tried to achieve the intended outcomes within their limited budget. Above detailed explanation was indicated in the project framework The figure was revised according to the updated information provided by the Ministry of Education.

Environment and Safeguard Division (Takashi Ohmura) No comments on the draft since environmental safeguard implication is identified

Noted

OCO (Lucila Chan) No comments from a co-financing perspective

Noted

OGC No comments from a legal point of view

Noted.