Second Primary Education Development Program · Program (PEDP-I). The government thus initiated the design of the Second Primary Education Development Program (PEDP-II), to be implemented

Completion Report

Project Number: 30216 Loan Number: 2015-BAN (SF) September 2013

Bangladesh: Second Primary Education Development

Program

CURRENCY EQUIVALENTS

Currency Unit – taka (TK)

At Appraisal At Project Completion (3 November 2003) (19 July 2012)

Tk1.00 = $0.0171 $0.01222 $1.00 = Tk58.41 Tk81.79

ABBREVIATIONS ADB – Asian Development Bank ADF – Asian Development Fund AOP – Annual Operations Plan ASC – annual school census ASPR – annual sector performance report C-in-Ed – Certificate in Education Dip-in-Ed – Diploma in Education DP – development partner DPE – Directorate of Primary Education EA – executing agency GDP – gross domestic product GER – gross enrollment rate GNP – gross national product GPS – government primary schools HRD – human resource development IA – implementation agency IE – inclusive education JARM – Joint Annual Review Mission KPI – key performance indicators LGED – Local Government Engineering Division MDG – Millennium Development Goals MIS – management information system MOPME – Ministry of Primary and Mass Education MTR – midterm review mission NAPE – National Academy for Primary Education NCTB – National Curriculum and Textbook Board NER – net enrollment rate OCR – ordinary capital resources PCU – program coordination unit PIO – project implementation officer PLU – program liaison unit PMU – program management unit PPMS – project performance monitoring system PSQL – primary school quality-level standards PTI – primary teaching institutes QCBS – quality and cost based selection RBM – results-based management

RNGPS – registered nongovernment primary schools SDR – Special Drawing Rights SLIP – school-level improvement plan SMC – school management committee SWAP – sector-wide approach SWG – sector working group TA – technical assistance TLM – teaching-learning materials TST – technical support team TOT – training of trainers UPEP – upazila primary education plan URC – upazila resource center

NOTES (i) The fiscal year (FY) of the government and its agencies ends on 30 June. FY before a

calendar year denotes the year in which the fiscal year ends, e.g., FY2009 ends on 30 June 2009.

(ii) In this report, "$" refers to US dollars.

Vice-President X. Zhao, Operations 1 Director General J. Miranda, South Asia Department (SARD) Director M. Teresa Kho, Bangladesh Resident Mission (BRM), SARD Team leader R. Van Dael, Senior Social Sector Specialist, BRM Team member F. Sultana, Senior Development Officer, BRM

Md. S Alam, Safeguards Officer, BRM Md. A Islam, Senior Project Assistant, BRM U. Bhattacharjee, Senior Operations Assistant, BRM

In preparing any country program or strategy, financing any project, or by making any designation of or reference to a particular territory or geographic area in this document, the Asian Development Bank does not intend to make any judgments as to the legal or other status of any territory or area.

CONTENTS Page

BASIC DATA

I. PROGRAM DESCRIPTION 1

II. EVALUATION OF DESIGN AND IMPLEMENTATION 2

A. Relevance of Design and Formulation 2 B. Program Outputs 3 C. Program Costs 6 D. Disbursements 7 E. Program Schedule 7 F. Implementation Arrangements 7 G. Conditions and Covenants 8 H. Consultant Recruitment and Procurement 8 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 11

A. Relevance 11 B. Effectiveness in Achieving Outcome 12 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 15

APPENDIXES

1. Program design framework 16 2. Status of Assurances 30 3. Contributions from Development Partners to PEDP-II SWAP 48 4. Gender and inclusive education 49 5. Summary table of civil works and need based furniture accomplished by LGED 56 6. Infrastructure Activities 57 7. Management of Consultants 60 8. Contribution to ADB results framework 64

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

Bangladesh 2015-BAN(SF) Second Primary Education Development Program People’s Republic of Bangladesh Directorate of Primary Education 71,973,371.16 (SDR) PCR: BAN 1410

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

27 April 2003 19 May 2003 29 March 2003 21 September 2003 3 November 2003 20 January 2004 20 January 2004 19 April 2004 0 30 June 2010 19 July 2012 2 1% ( grace period), 1.5% 32 years 8 years Not Applicable

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9. Disbursements a. Dates Initial Disbursement

23 August 2004

Final Disbursement

21 December 2011

Time Interval

88 months

Effective Date

19 April 2004

Original Closing Date

30 June 2010

Time Interval

74 months

b. 71.87 (SDR million)

No. (1)

Category (2)

Original Allocation

(3)

Partial Cancellations

(4=3-5)

Last Revised Allocation

(5)

Amount Disbursed

(6)

Undisbursed Balance

a

(7=5-6)

01A Civil Works 18.35 (21.97) 40.32 40.32 0.00

01B Furniture 2.93 0.94 1.99 1.99 0.00

01C Equipment 0.02 (0.07) 0.09 0.09 0.00

01D Computers 0.02 (0.34) 0.36 0.36 0.00

01E Vehicles 0.05 0 0.05 0.05 0.00

01F Learning material 1.42 (0.80) 2.22 2.22 0.00

01G Trainings 3.77 (2.53) 6.30 6.30 0.00

01H Research studies 0.26 (1.06) 1.32 1.32 0.00

01I Education grants 6.22 3.88 2.34 2.34 0.00

01J Program staff 15.77 (4.50) 11.27 11.27 0.00

01K Local Consultants 0.53 0.11 0.42 0.42 0.00

01L Operating cost 0.36 (0.39) 0.75 0.75 0.00

02A Equipment 5.14 5.14 0.00 0.00 0.00

02B Computers 0.45 0.45 0.00 0.00 0.00

02C Vehicles 0.58 (0.21) 0.79 0.79 0.00

02D Learning material 12.30 11.26 1.05 1.05 0.00

02E Overseas Training 0.54 0.25 0.29 0.29 0.00

02F International Consultants 2.20 1.01 1.19 1.19 0.00

03 Interest Charge 1.11 1.11 1.11 0.00

Total (loan currency SDR) 72.03 0.16 71.87 71.87 0.00

Total $ equivalent 100.00 0.24 109.33 109.33 0.00

10. Local Costs (Financed) in $ million - Amount ($) 69 - Percent of Local Costs 4.27% - Percent of Total Cost 3.80% C. Program Data 1. Program Cost ($million)

Cost Appraisal Estimate Actual

Foreign Exchange Cost 31.00 6.78 Local Currency Cost 69.00 102.55 Total 100.00 109.33

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2. Financing Plan ($ million)

Cost Appraisal Estimate Actual

Implementation Costs Borrower Financed 1,161.00 1,161.00 ADB Financed 98.36 108.22 Other External Financing 550.64 573.13

Total 1,810.00 1,842.35

IDC Costs Borrower Financed ADB Financed 1.64 1.11 Other External Financing 3.36 2.27

Total 1,815.00 1,845.73

ADB = Asian Development Bank, IDC = interest during construction.

3. Cost Breakdown by Program Component ($ million)

Component Appraisal Estimate Actual

Component 1: Quality improvement through organizational development and capacity building at system level

50.18 77.39

Component 2: Quality Improvement in schools and class rooms

510.78 384.03

Component 3: Quality improvement through infrastructure development

335.37 602.75

Component 4: Improved access to quality schooling* 26.99 17.96 Component 5: Program management, monitoring and evaluation

22.51 19.73

Total 945.83 1,101.86

* stipend project is excluded

4. Program Schedule

Item Appraisal Estimate Actual

Civil Work Award Date of First Civil Work Award Completion of Civil Work

January 2004 June 2009

July 2005 June 2012

Equipment and Supplies Date of First Contract

July 2004

January 2006

Material and Text book Date of First Contract

July 2005

August 2005

Local Consultant Date of First Contract

January 2004

Jun 2005

International Consultant Date of First Contract

January 2004

October 2004

Training (Local: 7800 schools SMC)

June 2004

July 2004

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5. Program Performance Report Ratings

Implementation Period

Ratings

Development Objectives

Implementation Progress

From 19 April 2004 to 31 December 2004 Satisfactory Satisfactory From 1 January 2005 to 31 August 2005 Satisfactory Satisfactory From 1 September 2006 to 31 December 2006 Satisfactory Satisfactory From 1 January 2007 to 31 December 2007 Satisfactory Satisfactory From 1 January 2008 to 31 December 2008 Satisfactory Satisfactory From 1 January 2009 to 31 December 2009 Satisfactory Satisfactory From 1 January 2010 to 31 December 2010 Satisfactory Satisfactory From 1 January 2011 to 19 December 2012 Satisfactory Satisfactory

D. Data on Asian Development Bank Missions

Name of Mission

Date

No. of Persons

No. of Person-Days

Specialization of Members

a

Inception Mission 12 June–18 July 2004 6 55 a,b,c,d Review Mission 10–25 April 2005 1 10 a,b,c Review Mission 25 April–8 May 2005 1 10 a,b,c Review Mission 27 November–1 December 2005 3 15 a,b,c Review Mission 25 April–8 May 2006 2 26 a,b,c Review Mission 19 November 2006 1 10 a,b,c Midterm Review Mission

29 October–12 November 2007 1 15 a,b,c

Review Mission 5–18 May 2008 5 70 a,b,c Review Mission 17–21 May 2009 2 10 a,b,c Review Mission 2–5 May 2010 5 60 a,b,c Review Mission 20 September-4 October 2011 1 5 b Project Completion Review Mission

10 January–6 February 2013 3 6 a,b,c,d,e

a a = analyst, b = Social sector specialist, c = consultant or specialist, d = control officer, e = programs officer.

I. PROGRAM DESCRIPTION

1. Bangladesh has made significant progress in providing primary education to all eligible children in the country. It has increased access (gross enrollment rate [GER], to 97.5% in 2002 from 76% in 1991), reached gender parity, and increased retention and completion rates (net enrollment rate [NER], to 85% in 2002 from 64% in 1991). Despite these gains, the gap to reach the Millennium Development Goals (MDGs) remained significant. The government was cognizant of the need to accelerate and sustain the gains and requested support from development partners, to build on work started under the first Primary Education Development Program (PEDP-I). The government thus initiated the design of the Second Primary Education Development Program (PEDP-II), to be implemented from 2003 to 2009. 2. In 2002, during project design, an estimated 15% of children did not attend primary school and 53.6% of those enrolled completed the primary cycle.1 Completion and participation were linked to opportunity cost and poverty, but as economies developed it was linked to the perceived quality of the primary education. The average time to complete the 5-year primary cycle was 7.9 years. The average student-teacher ratio was 55:1 but in government primary schools (GPS), where 90% of schools had double shifts, the ratio was 30:1. Double-shift schools may increase access, but they also compromise the contact hours children receive and affect the quality of education. Increasing internal population mobility confounded the demand for double-shift schools in both rural and urban areas. In 2002, there was a significant teacher shortage and at least 20,000 teachers in GPS were untrained or poorly trained. The supply and quality of teachers was even lower in other types of primary schools, particularly in rural and remote areas. The quality of the teacher preparation, recruitment, and deployment process could not meet the increasing demands. A lack of adequate and timely provision of textbooks and modern supplementary teaching-learning materials (TLM) also hindered quality. 3. The lack of adequate physical school facilities deterred participation. More and better-designed classrooms, clean water, and safe toilets were required. Of an estimated 1.6 million disabled primary school children, 60% could attend primary education with little or no adaptation and 20% with minimum adaptations. Little opportunity for these disadvantaged children existed. The government was encouraging the participation of disabled and disadvantaged children, including tribal children, through stipends and food programs. 4. The causes and consequences of poor education quality and inequitable access called for a coordinated systems approach. Improving the quality of primary education within a large and complex system like that in Bangladesh required robust organization and management capacity and a systemic approach. Lessons learned from previous primary education projects confirmed that a fragmented and uncoordinated approach by often competing development partners is unable to provide sustainable outcomes. The transaction costs associated with implementing such fragmented projects, for both the development partners and the government, affected project sustainability. To avoid this risk, the government and development partners recognized the need to adopt a sector-wide approach (SWAP) and to implement a systemic reform by targeting challenging aspects within the system. 5. Responding to the request of the government and with the agreement of the development partners, the proposed program aimed to provide quality primary education to all

1 ADB 2003. Report and Recommendation of the President to the Board of Directors: Proposed Loan to Bangladesh

for the Second Primary Education Development Program. Manila. The report notes concerns related to the quality of data available and that the estimate for completion of primary education could be as low as 50%.

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children in the country. To achieve this, the program was designed as a SWAP, cofinanced by 11 development partners. The integrated PEDP-II design does not allow separation of the support provided by ADB and the cofinancers. 2 The program had four outputs: (i) quality improvement of primary education through organizational development and capacity building, (ii) better quality in schools and classrooms, (iii) quality improvement through infrastructure development, and (iv) greater access to quality education for minority group and special needs children. Support was provided for the program administration of a complex SWAP program with multidonor financing. The interventions included in the four outputs targeted different beneficiary groups but most of the activities concentrated on GPS, registered nongovernment primary schools (RNGPS), experimental schools, and community schools. Benefits were expected for other types of schools as the innovations became institutionalized.

II. EVALUATION OF DESIGN AND IMPLEMENTATION

A. Relevance of Design and Formulation

6. By including a comprehensive set of interventions to improve quality, access, and equity in primary education through systemic reforms, the design was very relevant. ADB provided project preparatory technical assistance (TA) to develop the program which evolved as the Macro Plan underpinning the program design.3 The TA performance was satisfactory and the TA assisted ADB in initiating the design process. ADB became the lead agency. Negotiation and donor harmonization resulted in development partners agreeing to coordinate investments in primary education to leverage deeper reform outcomes. They also provided additional consultant support, aligned with their respective interest areas, to the design process. A subsector SWAP, financed jointly by the government and development partners, to integrate disparate bilateral projects in a systemic approach was a logical progression from the earlier projects.4 The consequent reduced transaction costs—for the government and the development partners—and the ability to pool resources allowed the project to address systemic issues and structural and human resource capacity simultaneously and in a more sustained manner. 7. The design process took 12 months, significantly less than usual program design; this was necessary for smooth transition from PEDP-I to PEDP-II. A short design phase for such a complex and innovative program poses challenges. Harmonizing and aligning the internal procedures from each development partner and the government was facilitated through consultative process. This effort involved appropriate government stakeholders, civil society representatives, and the development partners. More effort to prepare the Directorate of Primary Education (DPE) and the Ministry of Primary and Mass Education (MOPME) to understand the implementation of a SWAP would have smoothed the transition from the disparate bilateral projects to the integrated systemic SWAP.5 Although stakeholders had some initial apprehension, their shared expectation and confidence was strongly evident as the program progressed and the DPE gained more confidence in implementing a SWAP.

2 The Canada International Development Agency, the Department for International Development United Kingdom, the

European Union, the Netherlands, Norway, and the Swedish International Development Cooperation Agency (Sida) cofinanced through ADB (lead). The Australian Agency for International Development (AusAID) cofinanced through the United Nations Children's Fund (UNICEF). The Japan International Cooperation Agency (JICA) provided parallel support. The International Development Association (IDA) financed individually.

3 ADB. 2001. Technical Assistance to Bangladesh for the Primary Education Sector Improvement Project. Manila.

The First Draft Report of the Macro Plan was prepared by the Academy for Educational Development and Data International Ltd. and issued by ADB and the Government of Bangladesh in July 2002.

4 PEDP-I had 27 uncoordinated projects, which imposed significant transaction costs for the DPE.

5 See ADB. 2008. Sector Assistance Program Evaluation Report for the Bangladesh Education Sector, Education

Sector in Bangladesh: What Worked Well and Why under the Sector-Wide Approach? Manila.

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8. The design appropriately targeted strengthening the capacity of the DPE and the MOPME to develop, implement, and monitor quality primary education. Key performance indicators (KPIs) were used to strengthen the monitoring and evaluation (M&E) process. Financial management was strengthened with integrated planning and budgeting. The process of decentralizing education management was strengthened. To increase participation by providing safe and adequate learning environments, civil works in schools (classrooms, toilets, and tube wells) were included. To strengthen and enhance the decentralized system, civil works were provided to central and local education administration offices. Support was provided to the National Academy for Primary Education (NAPE) and the National Curriculum and Textbook Board (NCTB), two key institutions that support quality improvement in primary education. 9. To improve the quality of learning outcomes, a ”whole school” approach targeted bottom-up school improvement by empowering school management committees (SMCs) and head teachers. To improve the quality of teaching, primary education personnel management was professionalized through the adoption of transparent and merit-based recruitment, deployment, and transfer of teachers. The teacher training program was upgraded, the quality of learning resources (textbooks, teacher guides, and TLM) improved, contact hours for students increased, and student-teacher ratios reduced. Residential accommodations and continuation of the stipend program supported the participation of disadvantaged groups. 10. Although the design was appropriate, it was ambitious. As a consequence of the baseline study completed in 2005, major changes were made during the midterm review (MTR). More realistic targets were set, using two sets of indicators: (i) revised KPIs with 14 indicators of access, efficiency, and quality; and (ii) the primary school quality level standards (PSQL), with 20 indicators measuring program outputs for schools’ physical and environmental quality. The revision aptly accommodated changes necessary to repair damage caused by cyclone Sidr. 11. At the start, the program design aligned closely with both national and ADB strategies.6 Both focused on reducing poverty by improving the quality of and access to primary education. The program remained aligned with national and ADB strategies, since both aimed at improving the relevance of primary education.7 B. Program Outputs

12. To simplify the outcomes and accommodate the unexpected demand created by cyclone Sidr, the scope and targets of the four outputs were revised during the MTR on the basis of the DPE baseline study. Appendix 1 contains the program framework, and Appendix 8 contains the contribution to ADB results framework.

Output 1—Quality Improvement through Organizational Development and Capacity Building

13. The program helped build the DPE’s and the MOPME’s planning and management capacity to innovate, to plan resource allocation, and to implement and monitor a high-quality primary education system. The main areas targeted were better governance, decentralized management using district and upazila offices, human resource development, and institutional strengthening at the DPE. In 2008, a comprehensive institutional analysis and organizational 6 Government of Bangladesh. National Plan of Action for Education for All, 2001–2015; ADB. 2000. Country Assistance Plan Bangladesh (2001–2003). Manila.

7 Government of Bangladesh. National Education Policy, 2010; ADB. 2010. Country Partnership Strategy Bangladesh

(2011–2015). Manila.

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development plans were developed and approved. Implementation has been slow. To help develop the DPE’s capacity, organizational units such as the Finance Division, the Management Information System (MIS) Cell, and the Student Assessment Cell were strengthened. To develop capacity and institutionalize knowledge and practices, the program sought assurance that the government would fill vacancies at central and decentralized offices of the DPE. 14. The program also helped strengthen the NAPE and the NCTB, two key institutions contributing to primary education. In 2004, the NAPE became autonomous; in 2008 a strategic plan was developed and approved. A human resource development plan with resourcing implications for the NAPE to carry out its function is still in preparation. It will require government approval and ongoing financial support. The practice of staffing the NAPE through deputation undermines commitment and accountability; it requires resolution. Despite achieving these outputs, debate continues on the organization’s tangible role in and contribution to primary education. The NCTB still suffers from a lack of high-quality, relevant staff. 15. Under PEDP-II, chronic staff shortages in key institutions like the NAPE, the NCTB, and the Primary Teaching Institutes (PTIs) have continued, albeit to a lesser degree. Similar staff issue hindered progress toward adoption of decentralization initiatives. A systems approach requires appropriate personnel at all levels. A gap at one level has significant repercussions throughout the system. A positive outcome regarding vacancies was the 2005 transfer to the revenue budget of 11,000 positions created under earlier projects; however, a number of vacant positions created under PEDP-II have yet to be transferred to the revenue budget. 16. Decentralization and devolution of decision-making authority to districts has made slow progress. A draft time-bound decentralization and devolution plan was shared during the MTR. Decisions delegated to upazilas through the use of upazila primary education plans (UPEPs) include teacher transfers and school improvement activities. Upazila education officers (UEOs) and head teachers use school-level improvement plans (SLIPs) to make local decisions about school planning and improvements.

Output 2—Improved Quality in Schools and Classrooms 17. To achieve this output, the project used bottom-up interventions directed at schools that addressed classroom teaching practices and monitoring, and development of management, planning, and budgeting capacity. PSQL indicators were used to help the DPE and schools improve local capacity in quality improvement and accountability. SLIPs were introduced to empower SMCs to take ownership of improving the quality of their schools. Several rounds of SLIPs were implemented; some schools participated in each round, some only once. The UPEP process was never fully implemented. Strengthening SLIPs and UPEPs is part of the third primary education development program (PEDP-III), the follow-on to PEDP-II.8 18. Recruitment, training, and supply of quality teachers was targeted through a revised recruitment and deployment process based on merit and demand,9 a revised teacher training program based on contemporary teaching and learning practices, and a revised teacher transfer policy. Some 45,000 new teachers (60% of them women) were recruited and given preservice (induction) training. Owing to a lack of facilities, not all teachers could participate in the long-term preservice training and double-shifts were used for the long-term training. The project also

8 ADB. 2011. Report and Recommendation of the President to the Board of Directors: Proposed Loan to the People’s

Republic of Bangladesh for the Third Primary Education Development Project. Manila. 9 The revised teacher recruitment system received commendation from Transparency International.

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provided teaching resources and supported the strengthening of professional networks such as the upazila resource centers (URCs). The additional teachers helped reduce the student-teacher ratio to 46:1. Revision of the preservice teacher education program (Certificate in Education, or C-in-Ed) to introduce contemporary teaching and learning was delayed by differences in opinion between local experts and international advisors. A compressed version of C-in-Ed was used for preservice training, which may have compromised improvement of student learning outcomes. At the same time. a Diploma in Education (Dip-in-Ed) was being designed to replace the C-in-Ed. The development of the diploma is part of PEDP-III. 19. All new head teachers plus a significant number of existing ones received training in school quality improvement, teacher performance monitoring, and planning of in-service (cluster and subject-based) training. Teacher quality was also strengthened through support provided to the URCs. It was anticipated that URCs will deliver all in-service subject-based training. The provision of textbooks and TLM was part of this output. The printing and timely delivery of textbooks in all subjects for all grades was successful; however, the quality of the textbooks was not evaluated under the program. Provision of teacher guides was planned but did not progress as anticipated. 20. Two interventions that were not part of the PEDP-II design require mention here. First, in 2009 the DPE introduced the national grade 5 terminal examination covering all students from all types of schools. Previously, about 40% of students completing grade 5 would take a test to qualify for stipends in grade 6. A national exam was seen as more reliable and equitable. This exam led to substantial improvement in school monitoring, including in identifying performing and nonperforming schools. Second, in 2006 and 2008 two national student assessments were conducted. Unfortunately the data were not comparable. However, the assessments did help concentrate attention on monitoring student outcomes. This focus continues under PEDP-III.

Output 3—Infrastructure development 21. A key poverty reduction objective in PEDP-II was to provide a safe and motivating learning environment to encourage all children, including disadvantaged children, to participate in primary education. PEDP-II provided new and renovated classrooms, safe and segregated toilets for girls and boys, toilet facilities for teachers, and hostels for poor children in the Chittagong Hill Tracts districts.10 Renovations and extensions were funded for the NAPE, PTIs, and other education offices. To support teachers’ professional development, 398 new URC were established in underserved areas and 93 renovated. After cyclone Sidr and the MTR, the targets for infrastructure development were revised upward: an additional 398 school-cum-cyclone shelters, 10 hostels in the Chittagong Hill Tracts districts. 10,000 additional classrooms, 3,500 toilets for teachers, 5,000 toilets for children, and 3,247 arsenic-free tube wells.11 22. Private contractors and community groups were engaged to build the classrooms. Quality issues noted during early stages were resolved by the Local Government Engineering Department (LGED). Despite this rectification, the project completion report (PCR) field visits noted some design issues, such as the number of fans relative to classroom size, poor quality or lack of electrical wiring where electricity was available, and lack of sufficient compaction. These issues show that constant attention to quality of construction remains required and should be taken up in PEDP-III.

10

Some of the classrooms were designed and built to be used as cyclone and flood shelters during emergencies. 11

Appendix 5 provides an overview of the completed construction and appendix 6 an assessment of the construction achievements.

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Output 4—Improved Access for Poorest and Socially Excluded 23. This output targeted poverty (stipend program), geographical locations (remote and tribal), gender, and special needs. As noted, a large number of primary-school-age children were not attending school—they either never enrolled or dropped out before completing the 5-year cycle. Although the statistics show gender parity in enrollment at the national level, significant variations continue at local levels. 24. To improve the DPE’s capacity to promote inclusive education, support was provided to establish an Inclusive Education Cell, with 7 staff appointed and 64 education specialists recruited and placed in the field to implement activities. Four action plans were prepared for gender, vulnerability, special needs, and tribal children. They included awareness-raising and training activities. International and national consultants provided technical advice from 2007 until 2009. The field activities included an intensive awareness campaign on inclusive education using a mix of modalities to capture the attention of parents and communities. 25. To increase attendance and completion rates, the PEDP-I stipend support program was continued and supported by PEDP-II. The program, which targeted 40% of the poorest children, transferred money directly to the bank accounts of parents or authorized guardians. The support was conditional on children attaining 80% attendance records and a 40% mark on the school exam. At the end of the program 7,869,426 children had benefited from stipend support.12 C. Program Costs

26. The estimated program cost at appraisal was $1.8 billion equivalent. The government’s share amounted to $1.2 billion of the total cost. The remaining $654 million was to be funded by the 11 development partners. ADB’s portion was $100.0 million through Loan 2015. The loan was approved on 3 November 2003 and was effective from 19 April 2004. At completion, the actual cost of the development partners’ portion of the project stood at $684.7 million, compared with the $654 million planned. After cancellation of unused funds (SDR160,502.07), ADB’s amount stood at $109.3 million and the government’s at $1.161 billion, including the stipend project. Appendix 3 contains details on the contributions of each partner. 27. In 2005, the program had a major restructuring and the ratio of local to foreign currency changed from the originally planned $69.0–31.0 million to the finally realized $102.5–6.8 million equivalent. Foreign currency expenditures such as those for consulting services were downsized in lieu of the addition of infrastructure. The actual cost for infrastructure increased to accommodate the demand after cyclone Sidr. Owing to less coverage of SLIPs at the end of the program, actual expenditure on output 2 decreased. 28. No significant price overrun occurred. Procurement was completed in conformance with ADB’s procurement guidelines and other development partners’ guidelines. Fifteen contract packages (totaling $0.13 million) were declared misprocurements when inappropriate and collusive practices were discovered. D. Disbursements

29. The initial disbursement of the loan started in December 2004, and the final disbursement was in December 2011, a period of 8 years and 1 month. The loan account

12

Appendix 4 assesses the achievements in gender and inclusive education in more detail.

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closing occurred in July 2012 with $0.18 million canceled. The original disbursement schedule was optimistic and procedures were too complicated. When institutional capacity improved, disbursement improved. All disbursement conditions were met. 30. PEDP-II used a dual system to release funds. The government’s share was managed using the regular government system. The development partners’ share was managed in parallel using a common imprest account for the same expenditures. The DPE asked for statements of expenditures from its 1,110 cost centers and their implementing agencies, so it could prepare financial reports for the government and for the submission of Withdrawal Applications. This was a great challenge for them. After the MTR, the DPE was familiar with the system and funds flowed. Considering the transaction costs and complexity of the PEDP-II funding system, PEDP-III chose a “treasury model” using the government system for both costs. E. Program Schedule

31. The loan agreement was declared effective in April 2004. The program was planned as a 6-year loan from 2004 to 2009. Transition from a project mindset to a subsector SWAP program was rushed, and some of the administrative details between development partners and the government were still being completed during the inception mission. The iterative training and development through seminars gradually increased the DPE and the MOPME’s confidence in their ability to implement a SWAP. After 2006, momentum was visible. The first two years were a transition period in which organizational arrangements and policies were completed.13 The slow start delayed the recruitment of the consultant packages by 2 years (see para. 38). Similarly, multiple procurement procedures caused delays in civil works and textbooks procurement. The complexity of the program designs, the rigidity of the government’s planning and budget process, capacity limitations of the implementing agency, and cyclone Sidr prevented adherence to the initial schedule. The project period was extended from 30 June 2010 to 30 June 2011. The loan closed on 19 July 2012. F. Implementation Arrangements

32. In recognition of the transitional nature of the program, the implementation arrangement ensured flexibility to review and realign as the DPE and the MOPME developed capacity and the government delivered on certain assurances. The DPE led the implementation with support and guidance from the MOPME. The reform activities were implemented by DPE divisions and integrated with the DPE‘s regular activities through its annual operations plan (AOP).14 The MOPME established a Project Steering Committee of senior-level government representatives from all key ministries, divisions, commissions and districts, and upazila levels. Its role was to approve AOPs and associated budgets, to approve reports such as the MTR and Annual Sector Performance Report (ASPR), to provide policy and operational guidance, to undertake interministerial coordination, and to resolve conflicts. 33. A Program Coordination Unit (PCU) and a Program Liaison Unit (PLU) were established to assist the DPE in implementing the program. Lack of clarity in roles and functions led to the PCU functioning as a program management unit, which initially prevented the DPE from driving the program. As the DPE developed capacity in 2006, the PCU was phased out and a program management unit headed by a joint program director was formed to help the DPE coordinate

13

Teacher recruitment and transfer policy, finance division established, PEDP-I staff transferred to revenue budget. 14

The use of AOPs by the MOPME and the DPE was a relatively new approach. Previously they had used an annual development plan, which did not include the government activities and funding.

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the program. Program implementation accelerated because of the dedicated director’s rigorous coordination and oversight, particularly after the MTR. In the second year, a Finance and Procurement Division was established at the DPE under PEDP-II to harmonize and strengthen procurement and financial management, which was spread over separate projects. 34. The PLU was established to assist the DPE and the MOPME in administering the transition to a SWAP and facilitating liaison with the development partners and their requirements. ADB managed the PLU.15 Considering that PEDP-II was the first multidonor-funded SWAP in the education sector and considering the DPE’s capacity constraints, it was always going to be a challenge for the DPE to manage the large number of activities with cross-cutting themes, the new financing modalities, and the expectations of 11 development partners. The PLU was therefore a prudent consideration in the project design. After the MTR, financial management and procurement improved, with oversight from the joint Procurement and Finance Working Group, as well as a strengthened finance division and support from the PLU. 35. Development partners were organized in a consortium with a rotating chair, which allowed all to be involved in managing the consortium and strengthening ownership and commitment. As lead donor, ADB was a permanent vice-chair. All 11 development partners had subscribed to PEDP-II, and communication with the DPE was streamlined through the consortium and ADB, supported by the PLU. Development partners also participated in sector working groups to coordinate with the DPE and the TA teams. The collaboration and coordination between development partners improved over the years. 36. Initially, the technical support teams (TSTs) of international and domestic consultants were intended to be attached to the PCU. The phasing out of the PCU and the transition to working directly with DPE divisions reporting to the joint program director required some readjustment. The revised arrangement was not the best solution because regular monitoring of TST performance was not possible even though they submitted their final reports to the DPE. Implementation was also supported by working groups comprising development partners, TST representatives, and local experts for specific activities. The working groups broadened the involvement of the local stakeholders and increased ownership. Appendix 7 addresses the consultant arrangements in more detail. G. Conditions and Covenants

37. At appraisal, the program had 13 specific assurances, 3 conditions for loan effectiveness, and 4 conditions for disbursement. The loan effectiveness conditions were complied with on time. The assurances were revised several times, and the program ended with 57 assurances; 27 of which were fully complied with and others were assessed as “complied and ongoing” or “being complied.” The revised assurances had more realistic timelines and scopes. Assurances involving interministerial agreement are rolled over to PEDP-III.16 After the MTR, regular monitoring of the assurances and status reports was provided through the ASPR. Appendix 2 provides the status of compliance with assurances.

15

The PLU was funded by the administrative charges on the grants from the six development partners that were administered by ADB.

16 The career path for primary teachers and transferring development positions to revenue positions are two reforms that are part of PEDP-III.

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H. Consultant Recruitment and Procurement

38. The original procurement design had five packages. Package A was to support the PCU and the PLU. The PCU was phased out but the PLU was deemed to be critical to the success of the program. The PLU provided assistance to the DPE and development partners in managing the procurement procedures, particularly when ensuring effectiveness required coordinating four main procedures (for using the parallel funds from the International Development Association [IDA], ADB, the government, and the United Nations Children’s Fund [UNICEF]) plus procedures for additional consultant support provided by individual development partners. The remaining four packages were TST-1 for Organizational Development, TST-2 for Quality in the Schools and Classrooms, TST-3 for Infrastructure Development, and TST-4 for Access. All were delayed until 2006. TST-1, TST-2, and TST-4 were procured through quality and cost based selection (QCBS) and performed through firms. TST-3 was revised to recruit two architecture and engineering firms through QCBS as third parties to perform quality audits. Bundling consultant support in four packages procured through firms was an approach that lacked the flexibility needed to respond to an evolving program design. It was anticipated that 700 and 1,000 person-months of international and national consultants, respectively, would be needed. At completion, 366 and 780 person-months of consulting services had been used. After the MTR, several TSTs were phased out and additional consultants were provided by the development partners. Records of the consultant support provided by development partners are not available. The firms also procured significant overseas training. The effectiveness of these overseas trainings was not evaluated. I. Performance of Consultants, Contractors, and Suppliers

39. The LGED was responsible for contracting and managing all civil works, with oversight from the PLU. The arrangement was formalized in a memorandum of understanding.17 LGED provided timely performance and output reports, including financial reports. 18 The services provided by the two firms for third-party quality monitoring were not very useful; the Dhaka-based firms had limited outreach capacity and monitored only a sample of civil works. Most of the quality assurance was left to the LGED.19 Considering the extent of civil works in PEDP-II and their geographic dispersion, the LGED’s performance was satisfactory. 40. The consultant support for improving the quality of education that was procured through firms lacked flexibility and responsiveness. A lack of proper transition arrangements at the start of PEDP-II resulted in long delays in recruitment, owing to inexperience with the four procurement procedures. It often took a long time to negotiate changes and to get consultants on the ground. Also, the expertise of some consultants was not aligned with experience in large, complex systems like those in Bangladesh. Although there was no formal evaluation of these consultants’ inputs, there is consensus among the stakeholders that the design and coordination of the consultants was not very effective and the performance only partly satisfactory. 41. Consultant support provided by the development partners with parallel funding (neither loan nor ADB funded), particularly the results-based management (RBM) support, was very

17

This arrangement can be compared with a shared service center. A specialized government agency performs one specialized task for several other government agency for efficiency and quality reasons.

18 LGED, Sept 2011, Completion Report on PEDP-II. LGED provided other progress reports throughout the program

19 The few schools visited by the PCR mission revealed some issues of poor compaction of ground, cracks in buildings and poor electrical wirings. Under PEDP-III a third party validation is included, as well as strengthening capacity of local communities to monitor quality of construction.

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useful and helped build the DPE’s capacity to effectively monitor the program and to develop and deliver the ASPR on time. Other parallel consultant support was provided by the World Bank on national assessment and by UNICEF on SLIP implementation. Most of this parallel support was rated as satisfactory. The procurement of textbooks and other TLM was done through local firms and generally considered satisfactory. J. Performance of the Borrower and the Executing Agency

42. The capacity of the MOPME and the DPE to implement such a complex project design was overestimated. Their lack of familiarity with SWAPs and the complexity of coordinating 11 development partners using the program as the integrating framework contributed to anxiety and initial reluctance at the DPE and the MOPME to adopt such a complex and novel approach. Interministerial dialogue to advance certain activities such as the primary teacher cadre and institutional and staffing issues progressed slowly and even stalled at times as it was not fully under the control of the DPE and the MOPME. The design made the government aware of the MOPME’s limited capacity to implement a systemic SWAP targeting the entire DPE system. The government and the MOPME experienced a very steep learning curve during implementation and appreciated the benefits of a SWAP more and more. The government provided the continued support, both financial and advisory, that the DPE and the MOPME needed to implement the program. DPE line divisions and other institutions performed as best as they could to deliver the interventions. Perhaps the strongest evidence of the DPE taking a leadership role was its performance of the baseline study, which triggered a major revision of the program. Since then, the DPE’s performance improved and regular monitoring reports shared. The performance of the borrower and the executing agency are considered satisfactory. K. Performance of the Asian Development Bank

43. ADB was the lead development partner and provided significant support; an ADB staff member who was the full-time program manager for PEDP-II managed the PLU. Four staff members from the Bangladesh Resident Mission spent significant time in the PEDP-II administration. The PLU was critical for satisfactory implementation. The expected reduced role of development partners did not fully materialize under PEDP-II; thus ADB, as the lead, had to facilitate mediation between the development partners and the DPE and MOPME, which absorbed time and effort. ADB fielded two inception missions in 2004, two missions from the Controller’s Department in Manila to support disbursements, a thematic review in 2005, an MTR in 2007, and annual joint reviews from 2005 to 2011. ADB provided significant support to help the DPE and development partners act on the major changes agreed to during the MTR. Considering the pioneering nature of PEDP-II, ADB’s performance was considered satisfactory.

III. EVALUATION OF PERFORMANCE

A. Relevance

44. The program is rated as highly relevant. The design was relevant, innovative, and significant and closely aligned with the national and ADB strategies for reducing poverty by providing high-quality primary education to all eligible children, at both the start and the end of the program (see para. 11). The goals and purpose of the program appropriately targeted key priority issues affecting the quality of primary education. However, the large number of interventions designed to provide continuity from previous projects of multiple development partners made the program complex. Careful prioritizing could have helped reduce the number of interventions. During the MTR, a review against more realistic baseline data appropriately

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resulted in adjustments to the scope and targets without affecting the overall program design. The responsiveness of the program to accommodate the unexpected demand due to cyclone Sidr was commendable. The change did not compromise the relevance of the project as conceived during its design but allowed the adjustment of targets and indicators and the inclusion of additional funding to address the extra targets added in response to the cyclone. 45. Adopting a SWAP modality and a systemic approach allowed the project to work directly within the government system and support the DPE in delivering on its primary education development goals. It also fostered greater ownership by the government. In principle, the approach should reduce transaction costs for the DPE (joint reviews, common progress reports, and only four funding modalities) and increase sustainability by building the DPE’s planning, managing, and monitoring capacity. Harmonizing 11 donor partners’ support and pooling resources allowed interventions to be targeted more strategically and in a sustained manner to enhance outcomes and strengthen aid effectiveness. However, harmonization of development partners requires continued dialogue and coordination. Although the design had significant conceptual logic, the assumptions supporting a multidonor-financed SWAP are a huge leap from “project design.” ADB’s sector evaluation cautions against rushing to adopt complex SWAPs and provides a checklist to guide such transitions. 20 More planning and targeted capacity building for SWAP readiness could have prevented the long delay at the start of the program. The transition to PEDP-III could have benefited from lessons learned if the PLU had been maintained a little longer to allow the concept and procedures to be fully institutionalized. 46. Some of the cross-ministerial issues such as establishing the primary education cadre, filling vacancies in DPE, creating revenue positions in the MIS Cell and the Student Assessment Cell, and restructuring the NAPE have not progressed as expected. Progress on these issues is passed to PEDP-III. Despite these challenges, the DPE’s capacity was strengthened by supporting the MIS Cell, Inclusive Education Cell, SLIP Cell, and National Assessment Cell and by restructuring the NAPE. The DPE now has the capacity to use AOPs for its planning and budgeting and RBM for M&E analysis and reporting. Significant training was provided to strengthen DPE officers, but a lack of posttraining evaluation prevents any value analysis. Slow progress on two issues—filling vacancies at the DPE and its decentralized offices and creating sufficient revenue positions—remains critical for sustainability and raises the risk of losing the capacity gains made under PEDP-II. 21 The capacity developed, if retained and further enhanced, provides a sound foundation on which to introduce the next level of reforms. 47. Managing local and school demands in a complex and vary large system often requires resorting to a supply-side model. The introduction of bottom-up planning processes like SLIP and UPEP and of monitoring tools like PSQL can mitigate this tendency. The associated training and resourcing has contributed to developing a systematic planning and monitoring capacity and a functioning outreach arm of the DPE. SLIP empowered head teachers and SMCs to adopt a bottom-up planning process for the physical environment and learning processes and to take ownership of them. The nationwide implementation of SLIP is not completed. Institutionalization of this novel and necessary intervention is part of PEDP-III. 48. Improving teacher recruitment, deployment, and transfer, and strengthening and supplying teacher training was highly relevant. Investments in facilities and staff such as the URCs are underutilized because of misunderstandings about the role and purpose of URC and

20

See footnote 6. 21

Transferring temporary development positions under PEDP-II for core positions in the DPE to permanent revenue positions at the start of PEDP-III is significantly delayed.

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because of the tendency to adopt supply-side planning. Better use of URCs as part of in-service and preservice training is needed. The revision of the C-in-Ed was appropriate, but the disagreements between stakeholders resulted in significant delays. A rushed C-in-Ed was adopted as interim solution. The implementation of the Diploma in Education (Dip-in-Ed) is part of PEDP-III. This activity has been unsatisfactory, considering the time taken and thus compromised all teacher training provided to new and untrained teachers. Also, the PTIs’ capacity to provide the 18-month Dip-in-Ed training to all new teachers and untrained teachers will remain a major bottleneck. Options to open this training provision to other quality-assured providers should be explored under PEDP-III. Development and supply of textbooks and TLM was appropriate and worked satisfactorily. Delivery of teachers guides experienced some delay. 49. Provision of high-quality classrooms, toilet facilities for teachers and children, safe drinking water, and hostels for disadvantaged groups was highly relevant. Civil works were particularly relevant given the number of students out of the system, schools with double shifts, and schools that lack toilets and safe water. The inclusive education interventions appropriately targeted gender, special needs, tribal, and vulnerable children and successfully raised community awareness of inclusive education. Capacity at the district and upazila levels was enhanced, and inclusive education planning is now mainstreamed through SLIP and UPEP. The number of beneficiaries of stipends grew significantly during the project. B. Effectiveness in Achieving Outcome

50. PEDP-II is rated as effective. Of the 14 KPIs used as outcome indicators, 8 achieved the planned targets and 6 required either a review of the interventions or further continued support in order to reach the targets. The KPIs shows that the share of public expenditure as a share of GDP fluctuated during the program period from 1.93% in 2005 to 2.3% in 2010 but fell short of the target of 2.8%. Public expenditure on primary education as a share of total public expenditure on education achieved the target of 45%. The GER and NER exceeded the targets of 107.7% and 94.8%, respectively. Reduction in absenteeism in primary education also reached the target at 18%. The reduction in repetition and dropout rates did not reach the targets despite a larger number of children receiving a stipend (7.9 million, compared with 4.3 million in 2005). The student-teacher ratio decreased from 54:1 to 47:1 and achieved the target. 51. PSQL indicators were used to measure outputs. Teacher absenteeism was reduced and gender parity was achieved. Some 45,000 new teachers were recruited, which achieved a nationally aggregated student-teacher ratio of 47:1 but anecdotal evidence suggests that differences exist between schools and further rationalization is required. Program outputs regarding classroom construction were not achieved, 95% of the revised target was achieved. Construction of toilets exceeded the target, with 53% of schools having separate toilets for girls. Construction of tube wells exceeded the target, with 71% of school having arsenic-free tube wells and 77% having potable water supply, the majority of them through tube wells. The target for supply of school furniture was not achieved. Although the construction of new classrooms is necessary to accommodate the increased participation, a study to consider better use of space is urgently required.22 The target of reducing double shifts to increase annual contact hours to 900 was not achieved, since only 14.2% of schools were operating on a single shift in 2009. The provision of textbooks to all children in primary school on time was achieved. A total of 58 subject-based teachers’ guides were printed and distributed to 3,799,986 teachers. Preservice

22

Field visits during the PCR mission revealed that some schools were provided classrooms that were locked and used as storage or standing empty whereas another school had children studying in sheds with no walls. Similarly in some PTIs and URCs classroom space was underused.

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training was provided to 105,500 newly recruited and untrained teachers by PTIs, and in-service training was provided to about 607,700 teachers. The total enrollment of disadvantaged children increased from 45,680 to 83,067 over the program period. 52. The effectiveness of achieving the intended outcomes from SLIP activity is mixed. In 2011, 65% of the upazilas were using SLIP aligned to PSQL indicators with varying degrees of success. To help schools implement SLIP and use PSQL for school improvement, 99% of SMCs have received training. Furthermore, master trainers have been identified and trained to support capacity development for implementing SLIP in the remaining 35% (176) upazilas; this will continue under PEDP-III. Other outcomes of the program include building the capacity of the DPE’s central and decentralized offices. The Planning and Development Division and Finance and Procurement Division can now use AOP for planning and budgeting and the RBM for M&E.

C. Efficiency in Achieving Outcome and Outputs

53. PEDP-II is rated as efficient. Pending donor harmonization issues, a misunderstanding of the role of PCU, and the complexity of the design all contributed to the low implementation efficiency for the first two years. The procurement of consultant support was finalized in 2006, 2 years into the program. The high turnover of senior DPE and MOPME staff during the early phases affected progress. After the MTR in 2007, the implementation accelerated despite the continued chronic vacancies and high staff turnover. The efficiency of the DPE as a system was enhanced with the adoption of RBM as a management and reporting tool. Most of the revised outcomes were achieved by the end of the extended project, and those that were either partly or not achieved were rolled into PEDP-III. 54. Efficiency in achieving the outputs in infrastructure was satisfactory even with the upward adjustments of targets and the addition of civil works to repair cyclone damages. Efficiency in the supply of textbooks and TLMs was satisfactory. For teacher training the results were not as efficient as anticipated. The large number of teachers requiring training through PTIs using double shifts and through TOTs in Dhaka were not very efficient. Alternative models that avoid the bottleneck at PTIs and can be delivered locally need to be explored.23 D. Preliminary Assessment of Sustainability

55. The commitment of the DPE and the MOPME to improving the quality of primary education and reaching the MDG goals remains strong. The government has made necessary budgetary contributions and prioritized investment in primary education and in increasing participation and decreasing dropout rates. In the short term, most of the interventions are relevant and are being embedded in the subsector AOPs, ensuring continued support and increased likelihood of sustainability. Many are continued in PEDP-III to deepen their impact and help institutionalization. Infrastructure investment requires appropriate regular maintenance to ensure long-term sustainability. It appears that the management and recurrent cost of the hostels have not been finalized and therefore this infrastructure is not currently fully utilized. 56. To strengthen the sustainability of interventions in the short term, it is necessary for the DPE (including its decentralized offices) to maintain at least 70% of the permanent staff recruited and on the revenue budget so investments in capacity development can be sustained.

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A calculation of the internal rate of return was not conducted because the contribution of PEDP-II to the outcomes at the national level cannot be quantified. Public and private cost figures per primary education student are not available. PEDP-II focused on only 4 types of schools, but Bangladesh has 11. Data on contributions to primary education by other agencies, nongovernment organizations, and communities are not systematically available.

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This is being addressed under PEDP-III through a time-bound plan to fill all vacancies, to provide rigorous support for bottom-up planning through UPEP and SLIP, and to adopt a more strategic use of consultants to research ways to reduce the bottleneck at PTIs and identify a more cost-effective option for teacher training. The first two issues have already been taken up by PEDP-III. The continued support of the government and the commitment by the DPE and its line divisions to institutionalize the PEDP-II interventions gives assurance of achieving sustainability and justifies a rating of most likely sustainable. E. Impact

57. Five of the six performance indicators for the overall program goal were achieved. The exception was the expenditure on education as a percentage of GNP, which reached 2.3% compared with a target of 2.8%. Greater participation as indicated by the NER and the GER, the higher rate of completion of the five-year primary education cycle, and the higher rate of transition from primary to secondary education all have contributed to reaching the MDG obligations. The program also enhanced the DPE’s capacity to plan, budget, manage, and monitor its activities, contributing to increased efficiency and a bottom-up planning approach through the SLIP. The impact of civil works through safe classrooms and schools-cum-shelters, safe drinking water, clean and safe toilets for girls, and hostels for tribal districts contributed to a better school learning environment which in turn increased the participation and completion rates of all children. The impact on quality of learning was not as significant as anticipated. More innovative strategies are needed to modernize programs and increase effectiveness.

IV. OVERALL ASSESSMENT AND RECOMMENDATIONS

A. Overall Assessment

58. The overall performance of PEDP-II was satisfactory, properly addressing the major changes made during the MTR, and is likely to be sustainable. The program is rated as successful. The changes to the implementation arrangement were appropriate. As the DPE grew in confidence and capacity, supported by the interventions in the first two years, it took greater ownership and suggested more realistic assessment of the scope and targets. The design had flexibility to accommodate the unexpected cyclone disaster. The program focused on strengthening institutional practices within the DPE system at both central and decentralized levels. Several management and accountability tools—such as the RBM, AOP, ASPR, UPEP, and SLIP—were introduced and are being continued in PEDP-III. Increasing access to a minimum quality standard to ensure a safe school learning environment was successful. Aspects such as strengthening of the NAPE and some DPE Cells, and the lack of career options for primary teachers were recognized as important and carried forward to PEDP-III. Transparent teacher recruitment procedures were adopted and a larger number of teacher vacancies filled. The program, the first SWAP in primary education, cut a path for strengthening donor harmonization and increasing aid effectiveness. PEDP-II has contributed to providing the foundations for developing a strong and effective primary education system. B. Lessons

59. Assessment of executing agency capacity is critical when embarking on an ambitious SWAP and particularly so in a large, complex primary education system like that in Bangladesh with 11 development partners cofinancing the project. The high number of vacancies and limited capacity of the DPE were acknowledged during the design phase, which should have prompted a need to consider a preparatory phase to get minimum preconditions in place before beginning

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the implementation. In PEDP-II, the first 2 years prior to the MTR became by default the preparatory phase for finalizing organizational arrangements and policies. 60. A systemic approach to reforming the primary education system is required to address the complexity, complementarity and dependency of issues and organizations in primary education. To design such an integrated approach, a comprehensive subsector analysis to guide the scoping of the program and adopting realistic targets is necessary. The baseline study conducted by DPE for the MTR performed this function. 61. Balancing the combined roles of development partners, as agency staff providing oversight on behalf of the agency and as experts providing technical advice, requires constant attention and reflection to ensure that the government remains in the lead during implementation and that development partners get sufficient information to exercise oversight. 62. The use of consultant support with an evolving design requires flexibility. Therefore, packaging all consultant support in large lots through firms is not the best option. Institutional capacity development strategies should consider twinning between Bangladeshi and international institutions to developed capacity in the DPE and other local institutions. The international institutions can continue supporting the DPE after program completion. C. Recommendations

1. Program Related

63. In a subsector program, it is essential to include mechanisms that ensure that all relevant ministries, divisions, and commissions are adequately motivated to implement in a timely fashion the agreements made during the design phase. The use of results-based financing in PEDP-III aims to provide such incentives. 64. The back-to-back timing of PEDP-II and PEDP-III prevented the common process of incorporating lessons learned from earlier programs. Because other development partners and the government have also prepared evaluation reports, it will be useful for PEDP-III to synthesize the lessons learned and incorporate them in the MTR process for PEDP-III. 65. SLIP and UPEP are key decentralized planning, financing, and monitoring tools for improving the quality of the primary education system. To fully institutionalize decentralization requires strengthening the implementation of SLIP and UPEP during PEDP-III. 66. Because the project was closed in 2011 and the PCR done in 2013, a postproject evaluation review may be done in 2014. It is worth noting that many of the PEDP-II interventions were carried forward to PEDP-III, which may present challenges in attributing achievements. 67. A space utilization study of rooms in schools, PTIs, and URCs will help participants better understand current demand, develop more flexible designs and increase the efficiency and effectiveness of infrastructure investments. 68. A review of teacher training systems regarding separating the functions of setting training standards, recruiting and registering teachers, and delivering training can help improve teacher development. The in-service PTI system needs to be opened so quality-assured providers can participate to improve quality, increase capacity and generate competition.

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Program Design Framework

Outputs/ Outcomes

Performance Indicators at

Appraisal

Performance Targets at Appraisal

Revised Performance

indicators

Revised 2005 Targets after

MTR Achievements Monitoring Mechanism Comments

Overall Goal

Reduced poverty through universal primary education and sustainable socioeconomic development and equity in Bangladeshi society as envisaged in the MDGs

GER to improve

Increase from 97.5% in 2001 to 106–107% in 2009

1. GER: KPI-1 GER to improve from 93.7% in 2005 to 98% by 2009 (with gender parity)

In 2010, GER is 107.7% (above target). Gender disparity remains: GER was 103.2% for boys and 112.4% for girls in 2010 (above target).

M&E/EMIS Readjusted to reflect more realistic figures after the baseline study

NER to increase

Increase from 80% in 2001 to 88% in 2009

2. NER: KPI-2 NER to increase from 87.2% in 2005 to 90% by 2009 (with gender parity)

In 2010, NER is 94.8% (above target). Gender disparity remains: NER was 92.2% for boys and 97.6% for girls in 2010 (target reached).

M&E/EMIS

Students’ grade 5 completion rates to increase

Increase from 68% in 2001 to 80% in 2009

3. Student completion rate (grade 5): KPI-3

To increase from 52% in 2005 to 55% in 2009 with gender parity

In 2010, the completion rate is 60.2% (above target).

M&E/EMIS Correction made to target after finding of the baseline study

Proportion of children awarded stipends and completing grade 5

Increase from the present estimated 40% to 70%

4. Number of student stipends: KPI-4

Number of stipends at least maintained at or above baseline level

There are 7.9 million stipend recipients (almost double from baseline of 4.3 million).

M&E/EMIS Government provided additional funds for this activity

Progression rate from grade 5 to secondary school improved

Increase from 75% in 2001 to 85% in 2009 with equal numbers of boys and girls

5. Transition rate from grade 5 of primary schools to grade 6 of secondary schools: KPI-3

To improve from 92% in 2005 to 96% in 2009 (with gender parity)

The last recorded figure, from 2008, was 97.5% (target reached).

M&E/EMIS No gender disaggregated data available

Current public expenditure on education to increase

Increase to 2.8% of GNP by 2009

6. Expenditure on education as a percentage of GNP: KPI-6

Increase to 2.8% of GNP by 2009

In 2010, the ratio of education expenditure to GNP was 2.3% (target not reached).

M&E/EMIS

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Outputs/ Outcomes


Appraisal


Revised Performance

indicators



Program Purpose

To provide quality primary education to all eligible children in Bangladesh

Primary education expenditure per pupil over GNP to increase

Increase from 8.2% in 2001 to 10% in 2009

7. Expenditure on primary education as a proportion of total education expenditure: KPI-7

To increase from 37.11% in 2005 to 45% in 2009

In 2010, the share of primary education in total education expenditure was 45% (target reached).

M&E/EMIS [Indicators 8–12 refer to four types of schools supported by PEDP-II].

Absenteeism from school decreased

Decrease from 40% in 2001 to 20% in 2009 with gender parity

8. Pupil absenteeism from school all grades: KPI-8

Reduced from 22% in 2005 to 18% in 2009 (with gender parity)

In 2010, the absenteeism rate was 16.6% (target achieved).

M&E/EMIS

9. Student-teacher ratio: KPI-9

Reduced from 54 in 2005 to 48 by 2009

In 2010, the trend improved to 47 (on target).

M&E/EMIS In 2011 the ratio became 53. Under PEDP-III sufficient teachers remains a target

Repetition rates in all grade to decrease

Decrease by 40% in 2009 compared with 2001

10. Repetition rates in all grades: KPI-10

Repetition rates in grades 1–4 to be <10%, and in grade 5 <5% by 2009

All rates are off target. Grade: 2005–2010 1: 12.3%–11.4% 2: 11.0%–12.1% 3: 13.7%–14.1% 4: 11.4%–16.5% 5: 5.7%–7.1%

M&E/EMIS Grades 1 and 3 have a stable or improving trend, grades 2 and 4 a worsening trend. Grade 5 rate has doubled.

11. Coefficient of efficiency (year input): KPI-11

The mean year input to decrease from 8.1 years in 2005 to 7.5 years in 2009 with gender parity

In 2010, the year input was 8.0. While the trend over 2008–2010 is improving, it is still off target (target not reached).

M&E/EMIS

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Outputs/ Outcomes


Appraisal


Revised Performance

indicators



Dropout rates to decrease

Decrease by 40% in 2009 compared to 2001

12. Dropout rates by grade: KPI-12

Dropout rate to be reduced by 2% every year in all grades

Target not reached Grade: 2005–2010 1: 12.9%–8.5% 2: 8.8%–3.0% 3: 13.4%–7.7% 4: 16.0%–12.2% 5: 0.0%–9.5%

M&E/EMIS Grades 1–3, improving trend; grades 4–5 less satisfactory. Needs monitoring of cohorts for full 5-year cycle.

Primary school noncompletion rates to decrease

Decease from 33% in 2001 to 15% in 2009

After the major revision this indicator was dropped.

Output 1. Organizational development and capacity building

a. Enhance the capacity of the MOPME and the DPE and affiliated institutions such as the NAPE and the NCTB and field offices to ensure quality and equitable provision of primary education.

PCU and TST in place and operational

PCU established by January 2004 and TST by July 2004

a1. Human Resource Development (HRD) plan and institutional analysis concluded

Short-term and long-term training consistent with HRD plan and institutional analysis by December 2008

Partly achieved. Following the approval of the Human Resource Development and Management strategy and plan in February 2008, a comprehensive Organizational Development and Capacity Building Guide was prepared but is still not approved.

Administrative Division

Requires strong leadership from the project steering committee

Institutional and organizational analysis

Report available 6 months after PCU is established

a2. Institutional analysis and decentralization/ devolution plan concluded

Organizational reform implemented consistent with institutional analysis and decentralization/devolution plan by end 2008

A Devolution Plan was prepared and shared during MTR (2008). The Plan has been partially approved and is being implemented in some areas (e.g., flexible school timing and recruitment and transfer of some employees).


Requires strong leadership from the project steering committee

Organizational reform implemented and all vacant post identified at all levels

Agreement on all progressively identified vacant posts reached by 2009

a3. Staff vacancies at all levels in PTIs, DPEOs, UEOs

90% of staff vacancies to be filled by December 2009

Time-bound action plan to fill vacancies under implementation between 46% and 91% appointed at various levels by March 2011 (target not reached).


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Outputs/ Outcomes


Appraisal


Revised Performance

indicators



Additional instructor for PTIs

Additional new instructors recruited by end of year 2 of PEDP-II

Indicator dropped after MTR revision

Double shift in PTI discontinued

By the end of year 1 of PEDP-II all double shifts throughout the country to be discontinued

Indicator dropped after MTR revision. Double shift was inevitable to get the large number of teachers trained

Enhance field-level capacity at divisional, district and upazila levels

a4. UPEP in place and used for planning

To try to achieve universal coverage of UPEP by end of program

As of February 2011 guidelines approved, training concluded, and UPEPs implemented in 316 (63%) upazilas (target not reached but plans drafted to complete coverage).

Planning Division

Strengthen the Primary Wing of the NCTB

Indicator merged with performance indicator a6 after the MTR revisions

Provide sufficient textbooks, curriculum guides, and materials to all primary schools

Indicator not monitored but the activity was implemented under PEDP-II

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Outputs/ Outcomes


Appraisal


Revised Performance

indicators



Enhance the capacity of the NAPE to provide academic and technical support for improving primary education

The NAPE functioning as autonomous institution with operating procedures in line with the recommendations of the institutional capacity review

a5. Strategic Development Plan for the NAPE

Strategic Development Plan by March 2008

The plan was completed in 2009 but not yet approved and thus no resource allocation made.

NAPE The issue of autonomy has not yet been approved by the Cabinet. This has stalled other activities

Well-qualified staff in place

a6. Qualified specialist staff in place in the NAPE and the NCTB

Relevantly qualified specialist staff in place in the NAPE and the NCTB by March 2008.

Not completed. NAPE NCTB

Structural alignment of these two entities continues to present difficulties

Research/learning material output to increase by 50% by 2009


b. Enhance the capacity of EMIS to support monitoring and evaluation (M&E) and operative planning functions

b1. Time from collection to dissemination of data, with KPI/PSQL reporting in December each year

KPI/PSQL reports by December every year

December target not yet met. KPI/PSQL have been reported annually since 2005.

M&E This activity (b) was not included in the initial design, it was included after the MTR revision

b2. MIS Cell at DPE strengthened

Cell has sanction posts filled, has received appropriate professional development, and is using suitable equipment.

5 of 13 posts filled (38%). Cell and field offices now have equipment. Training provided for cell staff in data management and cleaning.

MIS

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b3. Establishment of upazila databases for annual PSQL processing

Upazila databases in operation by December 2008

Upazila database established in 2009 but bandwidth still does not allow communications. Upazila profiles shared with 95% of upazilas.

M&E/MIS

Output 2. Improved quality in schools and classrooms

a. Enhance and improve the field-level capacity of school organizations and management at the local level

School level plans developed and used for planning by SMCs

No targets specified

a1. SLIPs developed and used for planning.

Try to achieve universal coverage of SLIPs by the end of the Program

316 upazilas brought under SLIP (63% of target). Number of schools fell from 39,032 (of 60,965 targeted GPS, RNGPS, and community schools) to 16,182 in 2010 (27%) as funding was reduced (target not reached).

Separate study

Under PEDP-III implementing SLIP is included. Universal coverage is targeted for the end of PEDP-III

Improve the physical environment of the schools

Number of school meeting PSQL standards and procedure

40% of schools meet the PSQL standards by 2009

Disaggregated into separate PSQL standards, moved to several indicators

b. Improve the physical and professional capacity of PTIs, URCs, and school subclusters to deliver quality primary teacher training

b1. Revision of C-in-Ed curriculum

Completed by December 2008, implemented by July 2009, annual review

Not achieved. Implementation of new curriculum delayed to July 2012.

PTI C-in-ED modestly revised. Dip-in-ED being introduced under PEDP-III

All new teachers trained before deployment to schools

By 2009 all new teachers will have C-in-Ed before going to schools

Not achieved. 105,000 students completed C-in-Ed.

Due to limited space in PTIs not all teachers could go to C-in-Ed

Teacher in all types of schools will be trained

80% of teachers in all schools will have C-in-Ed qualification by 2009

85% have C-in-Ed in GPS and RNGPS in 2010.

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Outputs/ Outcomes


Appraisal


Revised Performance

indicators



Number of newly trained teachers appointed to increase annually

From 12,000 annually in 2005 to 15,000 annually in 2009

b2. Recruitment of new teachers

35,000 new teachers to be appointed

45,000 now appointed (above target).

PTI The target was increased after the MTR

b3. Appointment and training of new teachers

All newly recruited teachers go directly for training before going to the classroom from January 2009

Not achieved. Due to limited space in PTIs not all teachers could go to C-in-Ed

Improve the quality and delivery of in-service primary teacher training as an extension to the initial training through a sequence of career development modules

Nationally agreed PSQL standards for new and in-service teacher training in place by 2005 Every teacher to receive 5 days of in-service training on two occasions in PEDP-II Every teacher to receive 6 days of subcluster training each year

b4. In-service teacher training increased and support systems improved : PSQL 17

Teachers who have received 5-day subject-based training or equivalent increases to 70%. All teachers receive 6-day subcluster training each year.

Subject-based training for all teachers increased considerably in 2010 and at 85% was well above target. Head teachers receive more training of all types. Over 90% of teachers attended subcluster training in 2010 (above target) (607,700 teachers received subject-based training).

PTI The initial performance indicators were revised and consolidated as shown in b4 Need to move away from input and supply side models of in-service training

Review of function and activities of URC

Review based on activities carried out in year 1 completed in at the beginning of year 2

This was an important activity and very unfortunate it was dropped. URCs visited were underutilized

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Revised Performance

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c. Improve the quality of head teachers

Initial training for all new head teachers to PSQL standards

No target specified

c1. Head teachers receive initial training, including training in school management and academic supervision: PSQL 19

8,000 new head teachers receive initial training and 40,000 head teachers receive school management and academic supervision training by 2009

School management and academic supervision training increased in 2010 and is on target (target achieved).

PTI After revision the indicator had targets specified

Specialist components for head teachers included in teacher in-service program

No target specified


Increasing number of assistant teacher promoted to head teachers

No target specified


d. Enhance the quality of teachers and of teaching in primary schools through new job descriptions and improved career development

d1. Job descriptions and career paths for teachers and head teachers

Revised job descriptions with well-defined incentives, career paths, and recruitment rules by December 2008

Included in the Organizational Development and Capacity Building guide, which is drafted but not yet approved.

Separate study

Part of PEDP-III

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Outputs/ Outcomes


Appraisal


Revised Performance

indicators



plans Recommendation of the Teacher Recruitment and Appointment review adopted and developed as per the Human Resource Development and Management strategy and plan

No targets specified

Indicator revised and merged with d1 above

Teacher awards for excellence implemented. All teacher have a record of PD

No target specified


e. Enhance the provision and quality of learning resources

All TLMs available to students

From 2005 all TLM to be available in schools by the first week of the school year

e1. Teacher guides for all subjects available when needed: PSQL 18

Teacher guides for III-V subject available by Jun 2008 / I-II by Dec 2008

Not achieved. Guides provided and provision of teacher aids, etc. increased but still below universal coverage.

Initial design indicator for textbooks was merged in e1 to include all TLM. All textbooks were delivered on time at the end of the project.

f. Promote and facilitate greater community participation and support for education improvement in primary schools,

SMC training continues

No target specified

f1. Training of SMCs: PSQL 20

3 members of every SMC trained by 2009

Target achieved in 38% of SMCs. 75% of SMCs had at least one member trained by 2009. Since then there has been a drop, especially for GPS where only 25% report having three members trained in 2010 (target not achieved).

Indicator revised and targets specified

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Appraisal


Revised Performance

indicators



through SMCs, etc.

Innovative schemes funds used to promote community awareness of the value of education and child health

No target specified

The innovations fund activity was implemented but not monitored

Improved and equitable access to all children learning to improved student achievement

Shift system eliminated and student contact hours increased to average international standards

All schools to reach this by 2009

Indicator either dropped after MTR revision or merged somewhere else

Students competency based learning to improve

Increase by 50% in 2006 and 75% in 2009 compared with baseline from results of 2002


Proportion of class 5 students entering primary scholarship examination to increase

From baseline of 20% in 2001, increase to 50% in 2009; proportion attaining the pass level to increase from 5% in 2001 to 20% in 2009


Output 3. Quality improvement through infrastructure development

a. Provide improved levels of infrastructure, facilities, and equipment to encourage and facilitate

Number of newly constructed larger classrooms

30,000 larger classrooms constructed including in disadvantaged and poorer areas by 2009

a1. Number of newly constructed larger classrooms: PSQL 5

30,000 larger classrooms constructed including in disadvantaged and poorer areas by 2009

40,440 classrooms built (95% of revised target of 42,350) by April 2011.

LGED completion report

Revised target after MTR

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Outputs/ Outcomes


Appraisal


Revised Performance

indicators



improved and equitable access for all children, leading to improved student achievement

a2. Number of students per class room: PSQL 3

Class size reduced to 40 by 2009

65.3% of all GPS and RNGPS schools met the target in 2010.


a3. Maintenance of existing schools

10,000 GPS upgraded from Ok to Good condition as per prioritized list by the end of the program

Not yet achieved. Priority list of 4,284 schools in 429 upazilas prepared in 2010 now under execution by LGED.



Number of schools operating single shifts

Increase by 30% over 2002 levels

a4. GPS and RNGPS with single shift system: PSQL 11

28% of all schools operated in single shift by 2009

Not achieved. 14.2% schools run on single shift in 2010 (up from 12% in 2005). 20% of GPS and 3% of RNGPS schools on single shift.

Primary School Census 2011


Safe drinking water

In 37,000 schools by 2009

a5. GPS with safe, arsenic-free water and tube wells in working condition: PSQL 9

Arsenic-free water in 60% of schools by 2009; 80% of tube wells in working condition in all schools by 2009

In 2010, 71% of GPS with tube wells have arsenic-free water (above target), while 88% of tube wells in GPS are in working condition (above target).


Revised target after MTR. In 2011, 71% of schools have arsenic free tube and 77% have a portable water supply, the majority of them with tube wells

Improved toilet facilities

In 37,000 schools by 2009

a6. GPS with separate toilets for girls and boys: PSQL 8

GPS with separate toilets facilities increase to 60% in 2009

In 2010, 53% of schools had separate toilet facilities for girls, but there are large differences across districts.



Improved classroom furniture for grades 1 and 2

19,500 classrooms for grades 1 and 2 provided with appropriate future by 2009

By November 2011, 505,136 benches; 74,644 chairs and 53,623 tables were supplied to schools.



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Revised Performance

indicators



Provide improved infrastructure, facilities for PTIs and URCs

Renovate and upgrade PTI facilities

All PTIs upgraded by 2005 PTI expansion and renovations completed by year 3 of PEDP-II

By November 2011, 53 PTIs were extended and/or renovated (target achieved)


Was implemented but not monitored

Complete building URC is all remaining upazilas and renovating those that require upgrading

URC facility available in all upazilas in the country by 2005

URC centers are in most upazilas but not all.


URC construction and equipping program completed

All URC building completed and equipment provided by the end of year 3 of PEDP-II

By November 2011, 398 new upazila resource centers were constructed.



Output 4. Improved access for poorest and socially excluded

a. Enhance and institutionalize the capacity of DPE at the center and in the districts to meet the needs of poor children and children with special requirements

a1. Stipends impact on completion

Proportion of children completion rate (grade 5) of children awarded stipends

There is a need to clarify/reformulate the indicator. No study is yet available.

Separate study

a2. UPEP inclusive education plan and district and upazila inclusion plans

Inclusive education framework implemented and district, and upazila inclusion plans developed for all schools under UPEP

Not yet achieved. Guidelines for developing inclusive education plans have been communicated to all upazilas under UPEP. Inclusive Education Action Plan reviewed in October 2010. Finalization in progress in March 2011.

SLIP Cell/Inclusive Education Cell

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Outputs/ Outcomes


Appraisal


Revised Performance

indicators



Primary schools adopt explicit strategies and actions to provide inclusive education

10% of primary schools adopt strategies and action towards an inclusive approach by 2005 and 20% by 2009

a3. School level use of inclusion plans

All schools under SLIPs adopt explicit strategies to improve educational opportunities for inclusive education children by 2009

Uncertain. A UNICEF study is expected to shed light on the issue.

SLIP Cell/Inclusive Education Cell

Revised target and scope after MTR

Special needs support staff appointed to all district by 2004

a4. Support staff (inclusive education) appointed and trained for districts

64 (Districts) plus 7 (HQ) technical support personnel appointed, trained and in place by 2008

Partially achieved. 7 DPE and 64 assistant district primary education officers appointed in 2009.

Inclusive Education Cell

Children with special needs identified and participate in primary education

Baseline identified by 2006 and 25% participating in primary education by 2009

a5. The number of children with special needs in school: PSQL 2

Number of children with special needs in school increase by 5% annually

Annual increases remain consistently above the targeted 5%.

Revised target and scope after MTR

a6. Staff of the DPE, the NAPE, PTIs, and URCs and all field- staff trained in inclusive education strategies

All staff of the DPE, the NAPE, PTIs, and URCs and all field-level staff to be trained in inclusive education by 2009

Largely achieved: 270 staff attended TOT courses in inclusive education. They included Assistant District Primary Education Officers, PTI instructors, UEOs, URC instructors, and AUEOs. Training of other staff is ongoing. All 61,000 head teachers in 4 types of schools in 503 upazilas in 64 districts trained (target not achieved).

Inclusive Education Cell

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Revised Performance

indicators



District level disparities identified and plan in place to reduce the level

District level disparities reduced by 30% from the baseline by 2009


NER and education attainment on basis of gender, ethnicity, location, etc. neutralized

All disparity eliminated by 2009


AUEO = assistant UEO; DPE = Directorate of Primary Education; EMIS = education management information system; GER = gross enrollment rate; GNP = gross national product; HRD = human resource development; HRD&M HRDM M&E = monitoring and evaluation; MOPME = Ministry of Primary and Mass Education; MTR = midterm review; NAPE = National Academy for Primary Education; NCTB = National Curriculum and Textbook Board; NER = net enrollment rate; PCU = program coordination unit; PSQL = primary school quality-level standards; PTI = primary teaching institutes; RNGPS = registered nongovernment primary schools; SLIP = school-level improvement plan; SMC = school management committee; TLM = teaching-learning materials; TOT = training of trainers; TST = technical support team; UEO = upazila education officer; UPEP = upazila primary education plan; URC = upazila resource center

30

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Status of Assurances as of December 2012

Assurances Deadline

Reference in Loan

agreement Progress Status

Program Management

1 a. The DPE, under the guidance of MOPME, shall be the Executing Agency for the Program and shall bear the overall responsibility for timely implementation of the Program as well as for the transparent and accountable use of the PEDP-II funds. Program management structures, responsibilities and activities shall, to the extent possible, be integrated with DPE's and related primary education agencies' regular administrative set-up, responsibilities and activities.

31 July 2004

Schedule 6 para 1

Complied with

The DPE is the executing agency. The DPE fully owns the program activities. Transparent use of PEDP-II funds is monitored through various mechanisms. Program interventions are integrated with regular activities of line divisions and primary education agencies.

b. Within one month of the Effective Date, the Program Steering Committee (PSC), established by MOPME and consisting of senior-level representatives of MOE, NAPE, Planning Commission, ERD, Finance Division DPE, Ministry of Women and Children Affairs, Ministry of Special Chittagong Hill Tracts Affairs, Implementation Monitoring and Evaluation Division, Ministry of Establishment, Public Service Commission, Ministry of Local Government Division, Ministry of Social Welfare as well as representatives adequate representation of districts and Upazilas, shall have its first meeting. The PSC may co-opt members as necessary. Secretary MOPME shall chair the PSC, and the Program Director shall act as its member-secretary.

Original Date:

30 April 2004

Completed: 18 May 2004

Schedule 6 para 2

Complied with

The PSC was formed. A total of 22 meetings were held as of March 2010.

c. The PSC shall meet whenever necessary but in any case not less than once every quarter. It shall (i) approve the annual progress report, Annual Operation Plans, as well as the supporting budgets; (ii) provide overall policy

Schedule 6 para 3

Complied with

Meetings are held regularly and necessary decisions are made as and when required. Overall policy and operational guidance are provided by the Steering Committee. So far 22 meetings have been held.

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Assurances Deadline

Reference in Loan


and operational guidance for the implementation of the Program and decide on corrective action if needed; (iii) undertake inter-ministerial coordination essential to achieve the reforms under PEDP-II; and (iv) resolve issues and conflicts that may emerge during PEDP-II implementation.

d. The Program Coordination Unit (PCU), established within DPE, shall be headed by a full-time Program Coordinator. He/ She shall report directly to the DG of DPE who shall be the Program Director. The Program Director shall be charged with the execution of the Program and shall be assisted by a full-time joint Program Director. He/She shall be supported by four Technical Support Teams (TSTs) on (1) organizational development, (2) quality in schools and classrooms, (3) infrastructure development, and (4) access to education, respectively. Each of these TSTs shall be staffed with both international and local consultants who shall be engaged on a contractual basis.

Schedule 6 para 4

Complied with

The PCU was established with the functions specified. However, the PCU consultants’ contract (3 years) ended on 5 October 2007. The PCU is no longer needed. The DPE’s program management unit (PMU) has taken on the leadership and ownership of the program, with support from 3 TST packages, for which contracts expired on 30 June 2009.

e. The PCU shall support DPE to coordinate and monitor the implementation of PEDP-II activities through DPE's line divisions. More specifically, the PCU shall assist the DPE to: s(1) prepare the three-year Program implementation plans; (2) prepare the annual operational plans; (3) coordinate procurement activities; (4) prepare and maintain financial records, accounts and statements; (5) prepare all consolidated progress reports, including the mid-term review report, as well as the completion report referred to in Section 4.07(c) of this Loan Agreement; (6) organize

Schedule 6 para 5

Complied with

During the 3-year contract, the PCU consultants rendered services in the specified areas. Under the present arrangements, the PMU and concerned line divisions under the directive and guidance of the Director General of the DPE, who is also the Program Director, carry out the functions and the tasks as mentioned in this section.

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Assurances Deadline

Reference in Loan


monitoring and evaluation activities; (7) coordinate the work of the TSTs; (8) liaise with the PEDP-II Liaison Office Unit on Program implementation matters; and (9) review the monitoring and evaluation report prepared by the Monitoring and Evaluation Division of DPE for annual review missions.

f. The DPE Line Divisions, under the leadership of the line directors, shall implement PEDP-II as part of their regular responsibilities and activities. To do so, they shall be assisted by the TSTs. Each line director shall report directly to the Program Director.

31 July 2004

Schedule 6 para 6

Complied with

Line directors are responsible for the implementation of PEDP-II as part of their regular responsibilities and activities. All line directors report to the program director. Three TSTs were mobilized after November 2007 to assist line directors in implementing activities in their areas. The three TSTs completed their assignment in June 2009.

g. Established, Staffed, and Operating PMU. Added after MTR

Complied with

The PMU has been established with the joint program director as the head, assisted by staff in key functions. The PMU is responsible for managing and coordinating PEDP-II implementation activities in close coordination with line divisions.

h. Fielding of Consultants The services of consultants shall be utilized in the carrying out of the Project, particularly with regard to: (a)Program Coordination and PCU support; (b)Organizational development; (c)Quality in schools and classrooms; (d)Infrastructure Development; and (e)Equitable Access to Education.

Schedule 5 para 1

Complied with

Three TST packages for components 1 (organizational development), 2 (quality in schools and classrooms), and 4 (equitable access to education) were mobilized until June 2009. Program coordination is handled by the PMU. The PCU consultants (program coordination and PCU support) completed their contract, and the PCU is no longer needed. For infrastructure development, two architecture and engineering firms were engaged to provide independent monitoring of progress on and the quality of infrastructure. Six divisions and 64 district-level orientation program on inclusive education were held. In addition, an awareness program on inclusive education took place at 55 PTIs for the trainee teachers.

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Assurances Deadline

Reference in Loan


2 Within six months of the Effective Date, DPE shall have established a PPMS. This shall include a Monitoring and Evaluation Scheme to provide monitoring for quality education. Schools and Upazila and district offices shall be linked to DPE's Education Monitoring Information System Division and its Monitoring and Evaluation Division to ensure transparent and reliable collection, processing and analysis of PEDP-II key performance indicators. The scheme shall include public expenditure tracking.

Original: 30

September 2004

Revised: 30 April

2005

Schedule 6 para 47

Complied with

The Project Performance Monitoring System (PPMS) has been adopted and is being used as a framework for monitoring the progress of the program. A Results-Based Management Team supported by Sida has been placed at the DPE since 2007 to introduce a results-based management system to strengthen the monitoring and reporting system with a focus on results and outcomes of PEDP-II against the key performance indicators. With the assistance of the results-based management TA, the DPE’s M&E division prepared and completed annual sector performance reports for 2008, 2009, and 2010, which was shared as part of JARM 2010.

3 Within three months of the Effective Date, the list of key performance indicators shall have been finalized. These criteria shall be gender-segregated. The initial baseline survey shall be completed within six months of the Effective Date. The impact indicators shall be reassessed during annual review missions.

Original: 30 June

2004 Revised:

31 December

2004

Schedule 6 para 48

Complied with

A list of key performance indicators has been developed for monitoring the progress against the indicators. The criteria are segregated by gender, and the impact indicators are regularly reviewed. The MTR reviewed the program framework with more appropriate and realistic impact indicators. The baseline survey report was produced and printed in June 2006.

4 Within six months of the Effective Date, DPE shall have completed the baseline survey which shall include an audit of PSQL components.

Original: 30 June

2004 Revised: 31 March

2005 Completed:

30 June 2006

Schedule 6 para 48

Complied with

The DPE completed the baseline survey for 2005, which included the PSQL indicators, and a report was printed and distributed to all stakeholders. Regular updating of the baseline data is ensured through the annual school census reports.

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Assurances Deadline

Reference in Loan


5 At the latest by 30 June 2004, common learning outcomes standards for school performance shall have been formulated and widely distributed within MOPME and MOE, including field offices that have responsibility for registering and monitoring primary schools. The standards shall also be made public.

Original: 30 June

2004 Revised:

31 December

2004

Schedule 6 para 18

Complied with

The 50 terminal competencies have been established as the common learning outcomes. These have been distributed to all schools.

6 Within three months of the Effective Date, DPE shall have established a Quality Standards Task Force to monitor Primary School Quality Levels (PSQL).

30 June 2004

completed 29 July 2004

Schedule 6 para 19

Complied with

The Quality Standards Task Force was formed on 29 July 2004. It developed an action plan to implement urgent elements of quality improvement at the school level. Regular meetings are held to monitor progress. So far 17 meetings have been held.

7 Within three months of the Effective Date, DPE shall have developed and approved public information and media plan for PEDP-II.

Original: 30 June

2004 Completed

30 November

2006

Schedule 6 para 11

Complied with

With support from UNICEF, the DPE has developed and approved a communication strategy which is under implementation. Public TV campaigns with a special series to raise awareness and encourage children and parents to send children to schools have been aired. Community awareness campaigns have been carried out. A regular awareness program is ongoing. A 26-episode TV drama was aired on public television channel.

8 Within one year of the Effective Date, DPE shall have appointed the following staff to provide for inclusion of children with special needs in the formal education sector: one Assistant Director, Special Education; two Advisors in Special Needs Education; two Assistant Directors, Gender; and two support staff in DPE; as well as one Special Education Advisor per district. Fifty percent (50%) of the positions shall be filled by equally qualified women.

Original: 31 March

2005 Revised:

31 October 2008

Schedule 6 para 35

Complied with

The 7 posts for DPE have not been created while for the 64 positions for inclusive education consultants have been recruited for the 64 districts. Also, 64 ADPEOs are deployed to each district to oversee IE activities.

9 Within three months of the Effective Date, MOPME, in consultation with the Chittagong Hill Tracts Development Board, the Special

Original: 30 June

2004

Schedule 6 para 38

Complied with

A Strategy and Action Plan has been developed and approved, and is being implemented.

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Assurances Deadline

Reference in Loan


Affairs Division under the Prime Minister, Ministry of Chittagong Hill Tracts Affairs, the DPs, community leaders and Tribal Councils, and other existing Projects and Programs, shall have established a Task Force to develop a strategy and implementation Primary Education Plan for Tribal Children to improve quality and access to primary education for children from tribal communities and areas, including Chittagong Hill Tracts, Dinajpur, Mymenshingh, Naogaon, and Habiganj. The strategy and implementation Primary Education Plan for Tribal Children shall be developed in full consultation and collaboration with tribal communities and Hill District Councils and shall be decentralized and devolved to the communities concerned. The strategy and implementation plan shall be adopted within one year of the Effective Date and shall be implemented by the mid-term review. The task force shall provide input for-each Annual Operation Plan, in accordance with the Indigenous People's Development Framework.

Revised: 30 June

2005

Original: 31 March

2005 Revised: 24 April

2006

Complied with

Under implementation. Action plan approved. Priority given for stipend and book distribution. Initiatives taken to enroll. Instruction guideline circulated. Activities have been included in the AOP.

10 Within three months of the Effective Date, MOPME, in consultation with the Ministry of Women's and Children's Affairs, the Ministry of Social Welfare, the Ministry of Relief and Rehabilitation, and the DPs, shall have established a Task force to devise strategies to mainstream special needs children into primary schools.

31 March 2005

completed 24 July 2004

Schedule 6 para 39

Complied with

Taskforce on Mainstreaming Special Needs Children’s Education formed. Strategy and action plan developed and approved. Implementation ongoing.

11 Within one year of the Effective Date, DPE with the Task force shall have developed, in a participatory manner, and MOPME shall have approved, a Gender Action Plan as well as a

Original: 30 June

2004 Revised:

Schedule 6 para 39

Complied with

Gender action plan and vulnerable group action plan developed, and monitoring format developed. Incremental gender parity in recruitment training is ensured. Activities are included in the AOP and are

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Assurances Deadline

Reference in Loan


Vulnerable Groups Action Plan, including children with disabilities, working children, and in accordance with the Indigenous People Development Framework. Both these plans shall be fully implemented by mid-term review.

30 June 2005

Completed

being implemented.

12 Within nine months of the Effective Date, MOPME shall have prepared a time-bound action plan for addressing fiscal and supervisory irregularities in the primary education system.

Original: 31

December 2004

Revised: 30 June

2005 Completed

Schedule 6 para 17

Complied with

A risk mitigation strategy has been approved and widely disseminated for good understanding and implementation by the concerned government agencies. Training on risk management was also held.

13 Within six months of the Effective Date, DPE shall have established a full-fledged Financial Management Unit and shall have finalized a Financial Management. Manual, outlining financial management policies and procedures for PEDP-II. DPE shall ensure the use of the manual as the reference for standard operating procedures for financial management and related training activities.

Original: 30

September 2004

Revised: 30 April

2005

Schedule 6 para 16

Complied with

The DPE has established a Finance and Procurement Division. The financial management manual has been approved and distributed. The manual is distributed along with the necessary training programs for concerned staff.

14 At the latest by the first annual review, DPE shall have approved transparent procedures allowing schools to use at least 30% of the funds for supplemental reading materials and learning aids, to purchase such materials from the local market.

Original: 30 April

2005 Revised:

30 November

2008

Schedule 6 para 37

Complied with

Publication of 25 supplementary reading materials completed. Total fund allocated for supplementary reading materials utilized. A total of around 62,000 schools have been provided with TK 10,000 each to purchase teaching learning materials from the prescribed 29 items, and learning aids from the local market.

15 a. Within six months of the Effective Date, MOPME and the Ministry of Establishment shall have approved a policy and time-bound action plan, prepared by MOPME, to establish a primary education sub-cadre. b. Such action plan shall be fully implemented by 31 December 2005.

Original: 30

September 2004

Revised: 30 April

2005

Schedule 6 Para 20

Being complied with Under review

A primary education subcadre is being considered by the government, so implementation of the plan has not yet started. Under PEDP-III a career path for primary teachers is being pursued.

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Assurances Deadline

Reference in Loan


16 Within three months of the Effective Date, MOPME in consultation with the Ministry of Establishment and the PSC, shall have prepared and approved a time-bound action plan to fill all professional positions in DPE, NAPE and NCTB.

Original: 30 June

2004 Revised:

31 January 2005

Schedule 6 para 21

Complied with and Ongoing process

A time-bound action plan was prepared by MOPME and shared with the Ministry of Education. Positions at the NCTB and the DPE have been largely filled.

17 Within three months of the Effective Date, the responsible Ministries shall have approved simplified procedures for filling vacancies for District Primary Education Officer (DPEO), Assistant DPEO (ADPEO), Upazila Education Officer (UEO), Assistant UEO (AU EO) and URC staff at Upazila and district level. All such positions shall be effectively filled by the mid-term review. 30% of those positions shall be filled with equally qualified women.

Original: 30 June

2004 Revised:

31 December

2008

Schedule 6 para 22

Complied with and Ongoing

Vacancies at DPEOs, UEOs, and URCs are being filled in accordance with government regulations. New positions have been created in phases and recruitment is ongoing.

18 Within one year of the Effective Date, all above vacancies shall be filled. The Borrower shall ensure to implement its policy of less frequent transfers by keeping staff in those positions for at least three years, except when a promotion within the same Ministry is involved.

Original: 31 March

2005 Revised:

30 September

2006

Schedule 6 para 22

Complied with

The DPE’s Administrative Division follows a time-bound action plan. Filling of vacancies is a continuous process.

19 a. At the latest one month before the first annual review of the PEDP-II by 31 December 2004, DPE shall have prepared the first phase of the Human Resource Development and Management Strategy and Plan for primary education. This shall include the preparation and approval of a study, including a time-bound action plan, regarding the recruitment of teachers, improvement of the status of teachers, career paths for teacher as well as an incentives and reward system and structure for teachers.

Original: 31

December 2004

Revised: 30 June

2005 Completed:

28 February

2007

Schedule 6 para 23

Complied with

The Human Resource Development and Management Strategy and Plan was approved. Implementation is ongoing. Time-bound action plan for recruitment of teachers is strictly followed and draft career path report prepared.

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b. The action plan shall include measures to increase the recruitment of female teachers with an overall aim of having 60% female teachers by the end of PEDP-II. Measures regarding the improvement of career paths for teachers as part of the action plan shall include but not be limited to: (i) The inclusion of "experience in primary education teaching" as a selection criterion for recruitment for AUEO and URC positions and the necessary measures to ensure that at least 80% of those positions are filled through the promotion of qualified primary education teachers, rather than through direct recruitment; and (ii) The issuance of an order that sets the level of a headmaster at a level higher than that of teachers and the necessary measures to ensure that at least 80% of all vacant headmaster positions will be filled through the promotion of primary education teachers, rather than through direct recruitment. c. DPE shall ensure to take all necessary and appropriate measures to implement the action plan six months before the mid-term review.

Schedule 6 para 24 Schedule 6 para 25 Schedule 6 para 23

Being complied with Being complied with & ongoing in some cases.

Recruitment of female teachers has increased considerably to 49%. Special efforts were being made to raise the number to 60% within the PEDP-II period. The stipulations in this assurance have been included in the action plan and are being implemented by the DPE.

20 At the latest by 30 June 2004, the PEDP-II initial and in-service teacher education program shall have been developed and introduced. Until such time, the existing program, developed under the First Primary Education Development Program (PEDP-I), shall remain in use. The training program shall include gender equality training, training on

Original: 30 June

2004 Revised: 30 April

2005 Proposed: 30 June

Schedule 6 para 26

Complied with

An in-service training program is developed and strictly followed. Two shifts training at 55 PTIs are in progress. A total of 79,067 teachers have received C-in-Ed after launching of PEDP-II, and 15,831 are currently undergoing training at PTIs. The C-in-Ed curriculum includes gender issues, inclusive education, and health and sanitation.

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inclusive education and training on health and sanitation.

2007

21 Within six months of the Effective Date, the Borrower shall sanction all temporary PEDP-I positions so that these positions will become part of the regular budget. A list of those positions to be sanctioned shall be agreed upon between DPE, the Bank and other DPs.

Original: 30

September 2004

Revised: 31 March

2005

Schedule 6 para 28

Complied with

A total of 11,000 teaching posts and staff from PEDP-II have been transferred to the revenue budget. PEDP-II teaching posts are created under the revenue setup.

22 Within one year of the Effective Date, the Borrower, the Bank and other DPs shall agree on a list of PEDP-II positions that need to be sanctioned. Sanctioning shall take place in a phased manner of 20% of the agreed positions each year, starting in the second year of Program implementation.

Original: 31 March

2005 Revised: 30 March

2007

Schedule 6 para 29

Being complied with

A total of 30,000 posts are created under the revenue budget. So far, 24,778 have been recruited. Also 24,431 assistant teachers and 3,953 head teachers have been recruited. Recruitment of the remaining teachers is in process.

23 Within nine months of the Effective Date, the Borrower shall cause the responsible Ministries to prepare a comprehensive Organizational Analysis of DPE, MoPME, NAPE, the curriculum of NCTB and other education institutions at all levels, and to make recommendations for their restructuring.

Original: 31

December 2004

Revised: 30 April

2005 Proposed: 30 October

2006

Schedule 6 para 31

Complied with

The organizational analysis was completed in 2005, and finalized and approved in December 2006. Some of the recommendations are already implemented.

24 Within one year of the Effective Date, the relevant Ministries shall have approved and started the implementation of a time-bound action plan reflecting the results of such analysis and the recommendations.

Original: 31 March

2005 Revised: 30 June

2008

Schedule 6 para 31

Being complied with

A time-bound action plan has been developed and used to monitor the progress of the activities.

25 Within six months of the Effective Date, the Borrower shall have taken all necessary and appropriate measures to effectively establish NAPE as the autonomous apex agency for

Original: 30

September 2004

Schedule 6 para 32

Complied with

The NAPE has been declared autonomous since October 2004; the rules of business have been approved and adopted. Staff vacancies are filled regularly. The strategic development plan has been

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quality standards of teachers and teaching. This shall include the establishment of a Teacher Registration Board.

Revised: 30 June

2006

developed, which will help strengthen the NAPE. The Teacher Registration Board still needs concrete action to materialize.

26 Within six months of the Effective Date, MoPME shall have established a National Assessment Cell (NAC) with a mandate to carry out annual sample-based national assessments of Class 3 and Class 5 students. Based on the outcomes of such national assessments, the NAC and the curriculum wing of NCTB shall review every two years the student curriculum as well as the instructional materials in relation to teacher support.

Original: 30

September 2004

Revised: 30 April

2005 Proposed:

15 April 2006

Schedule 6 para 33

Being complied with

The National Assessment Cell has been established at the DPE’s M&E Division with existing DPE staff, with close collaboration with the NCTB, the NAPE and Dhaka University’s Institute for Education Research. Two rounds of national student assessment were held. The reports are available and distributed to stakeholders and development partners.

27 a. The Borrower shall take all necessary and appropriate steps to gradually decentralize planning and management functions of activities under PEDP-II and of education activities in general, to the district, Upazilas and schools. Within six months of the Effective Date, DPE shall have identified which organizational functions are to be decentralized, and shall have developed a devolution plan, indicating which changes are needed in terms of authority, responsibility and accountability to make such decentralization and devolution operational. b. By the mid-term review, all action needed to make this effective shall have been finalized, including (1) a review and modification, where necessary, of official documents such as the Published Rules of Government and MOPME administrative orders and (2) the preparation of new job descriptions at all levels.

Original Date 30

September 2005 SLIP

Original: 31

December 2004 SLIP

Revised: 30

December 2008 UPEP

Original: 31

December 2004 UPEP

Revised: 31 March

2009

Schedule 6 para 7

Being complied with

The level of delegation of financial power has been issued. Meanwhile, some authority related to transfer and posting of teachers and staff (class III, IV) have been delegated to field offices. In addition, some other administrative authorities have already been delegated to field offices. A comprehensive devolution plan has been approved by the MOPME. Some procurement and financial functions have been decentralized. SLIPs have been implemented in 316 upazilas.

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28 a. SLIPs shall be prepared jointly by head teachers and SMCs for consolidation into the UPEPs. The SLIPs shall include plans and records on the use of school support funds. By December 2004, SLIPs shall have been prepared and approved for 20 percent of the schools. By the mid-term review, all schools shall have annual operational SLIPs. DPE shall ensure that only schools with a SLIP shall be granted school improvement funds. b. PEDP-II activities shall be based on Annual Operation Plans which increasingly shall be developed in a bottom-up approach, taking into account SLIPs, UPEPs, and District Education Plans. Three months before the start of each related fiscal year, DPE shall prepare and submit to the DPs for their approval, the Annual Operation Plan for the following fiscal year. c. Each Annual Operation Plan shall meet the following criteria: (1) it shall be prepared in consultation with and based on data collected from the various stakeholders of the PEDP-II at various levels; (2) it shall include fully costed proposed Program activities for each output, linked with performance targets of PEDP-II; (3) it shall include a detailed description of how proposed Program activities shall be integrated into the existing structure and with ongoing activities at DPE, division, district, Upazila and school levels; (4) it shall include allocation of adequate resources and counterpart funding in the Borrower's recurrent budget for the Program; and (5) it shall be in line with the three-year implementation plan for the

SLIP Original:

31 December

2004 SLIP

Revised: 30

December 2008

31 March

2009

Schedule 6 para 10 Schedule 6 para 12 Schedule 6 para 13

Being complied with Being complied with Being complied with

Schools included in the first phase have prepared SLIPs. All these schools have opened their bank accounts. A replication plan for universal coverage for the remaining period is planned. Each year the government prepares an AOP which is discussed and endorsed as part of the Joint Annual Review Process. The AOP provides planned activities and budget by component. Each AOP provides summary information on shares by sources of financing including government, pooled development partners, and parallel development partners. Budget utilization is regularly monitored. Cofinancing arrangements by development partners have been obtained and are functioning well.

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Program. d. In the event any of the co-financing arrangements listed in the Preamble to this Loan Agreement cannot be obtained, the Borrower shall take all necessary and appropriate steps to make other arrangements to cover the shortfall, through budget allocations or other arrangements acceptable to the Bank. If such arrangements cannot be made, the Borrower, the Bank and the other DPs shall agree on the Components or activities of PEDP-II to be scaled down.

Schedule 6 para 15

Not Required

29 The Upazila Education Office shall gradually become fully responsible for primary education planning and management as well as monitoring and evaluation of education related activities at Upazila level. By 31 December 2004, UPEPs shall have been prepared and approved for 20 percent of the Upazilas. By the mid-term review, all Upazilas shall have annual operational UPEPs.

UPEP Original:

31 December

2004 UPEP

Revised: 31 March

2009

Schedule 6 para 9

Being complied with

243 upazilas have been brought under UPEP.

30 a. Within three months of the Effective Date, OPE, the Bank and other DPs shall agree upon the criteria for selection of new schools and other facilities. Within nine months of the Effective Date, those parties shall agree upon the criteria for selection of (1) participation in special needs programs; (2) participation in overseas and national training programs; (3) allocation of funds under various grant schemes, including the Innovative Grant Scheme. These criteria shall be reviewed on a regular basis. Such review shall equally include a review of the criteria for eligibility for stipends.

30 June 2004

For various grants:

Original: 31

December 2004

Revised: 30

September2008

Schedule 6 para 34

Complied with

The criteria for selection of new schools and other facilities are jointly agreed, finalized, and used. Criteria for overseas and national training program have been approved. Fifty officers have had study tours abroad. An action plan on special needs has been approved and being implemented. An innovation grant has been awarded for 10 proposals in the first phase in 2007 and 10 proposals in 2008. In the third phase 100 proposals have been awarded.

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b. The Borrower shall ensure that all schools, training centers and other buildings to be constructed under the Program shall be located on land owned by the Borrower and no resettlement of people, including squatters, shall be involved. In the event that involuntary resettlement is unavoidable, the Borrower shall ensure that this is done in accordance with the Bank's policy and guidelines on Involuntary Resettlement. c. The Borrower shall ensure that civil works contractors comply with all applicable labor legislation. Bidding documents shall include a clause on the prohibition of child labor, as defined in the Borrower's legislation, for construction and maintenance activities as well as a clause regarding the respect of equal pay for men and women for work of equal value. Compliance with these provisions shall be strictly monitored during Program implementation. d. The design, extension, upgrading, renovation and operations of facilities under the Program shall follow the Borrower's environmental requirements, the Bank's environmental guidelines for Selected Infrastructure Development Projects, and other relevant Bank guidelines on environment. e. The Borrower shall ensure that for all facilities to be constructed or rehabilitated under the Program, particular attention shall be given to the provision and maintenance of safe

Schedule 6 para 40 Schedule 6 para 41 Schedule 6 para 42 Schedule 6 para 43

Complied with Complied with Complied with Complied with

Schools and training centers are constructed on government land and no resettlement is required. Civil works contractors are instructed to comply with labor legislation. It is regularly monitored. Equal payment is made for male and female workers and is being monitored regularly. The infrastructure design, extension, and other facilities follow government and SDB guidelines. Requirements are closely followed. Special attention has been paid to ensure safe drinking water and separate toilets for girls and teachers. A total of 13,640 attached toilets have been built and 3,636 are in process. A total of

44

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drinking water, including regular testing of water for arsenic contamination, and adequate sanitation and other facilities for both students and teachers, particularly the needs of girls and female teachers. f. DPE shall take all necessary and appropriate steps to encourage the involvement of communities and SMCs in school and classroom construction. It shall do so by involving SMCs as formal parties to the certifications of quality construction and progress final payment. Prior to the commencement of any construction, the Local Government Engineering Division shall provide each SMC with a copy of the plans and specifications of the work to be undertaken at their school or school site.

Schedule 6 para 44

Being complied with

12,202 tube wells have been sunk and 6,045 are in process. SMCs are fully involved in monitoring the construction activities. They are provided with copies of specifications prior to undertaking the construction.

31 The curricula and materials to be developed under the Program shall be developed with due consideration for issues of cultural and ethnic diversity, gender as well as disability issues.

Original: 31 March

2005 Revised:

31 October 2008

Schedule 6 para 36

Being complied with

Due consideration is given to ethnic diversity and gender issues in the curriculum and materials for primary education. Three Meena storybooks have been developed on vulnerable, special needs, and gender items.

32 a. The Borrower shall ensure that all DPE, MOPME, NAPE and NCTB staff participating in specialized training will not be re-posted for a period of at least three years after completion of such training. To that extent, a written agreement between the Ministry of Establishment, MOE, and MOPME covering such re-posting shall be submitted to the Bank within one month of the Effective Date. b. DPE shall ensure that female staff are encouraged to apply for all training activities,

31 December

2004

Schedule 6 para 27 Schedule 6 para 30

Being complied with. Being complied

Overseas training of 138 officers and teachers has been completed. Ongoing government regulations will be adopted for short-term training and study tours. Female representation is ensured for all training especially overseas training.

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including long-term overseas training. When candidates have equal and comparable experience and qualifications, female candidates shall be given preference. Overall, At least 50% of the staff receiving overseas training shall be female.

with

Others

a. DPE, the Bank and other DPs, shall jointly review the Program in the first quarter of every year to review the implementation progress. In addition to the standard review matters set out in Section 4.06 and 4.07 of this Loan Agreement, the review shall (1) evaluate the effectiveness of the implementation mechanisms and the efficiency of the organizational development; (2) assess the impact of the Program on poverty reduction; (3) assess Program contributions to the improvement of the quality of primary education; (4) assess implementation performance against agreed upon indicators in the program framework and adjust indicators as needed; (5) identify primary education policy issues; (6) assess the effectiveness of Program strategies for promoting greater participation of girls and disadvantaged groups; (7) assess progress on key Program innovations as well as learning outcomes and quality of teaching; and (8) coordination of interventions within the Program and integration of PEDP-II set up and activities within DPE existing set up and activities. The report of the annual review of the fifth year of the Program shall be a cumulative report. In addition to the annual reviews, thematic supervision missions shall be held once a year.

Schedule 6 para 45

Being complied with

A Joint Annual Review Mission is held on yearly basis. One thematic review mission was held in November–December 2005 which led to serious efforts to implement SLIPs/UPEs. In 2007 a mini JARM was held in May 2007 followed by the MTR in October–November. In addition, a quarterly program progress report is provided to development partners and discussions are held regularly between development partners and the DPE to discuss issues and actions required to address implementation concerns.

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b. The Borrower shall provide adequate budget allocation to DPE for each fiscal year during the Program implementation to cover all recurrent costs and other counterpart-funding required for the Program, including but not limited to the cost for teachers' salaries as well as the cost for construction maintenance. The Borrower shall ensure such funding through the approved annual development plan allocations and shall, within three months of the close of each related fiscal year, furnish the Bank with the actual allocations given to the sub-sector. c. DPE, the Bank and other DPs shall jointly undertake a midterm review (MTR) of the Program at the end of the third year of Program implementation. The MTR shall review and evaluate (a) Program scope, design and implementation arrangements, and institutional changes; (b) implementation progress against agreed indicators in the annual operational plans and the three years implementation plan; (c) procurement performance; (d) PCU effectiveness; (e) performance of consultants; (f) fund flows; (g) the geographical coverage of UPEPs and SLIPs and their operation; (h) the progress of implementation of the Gender Action Plan, the Vulnerable Groups Action Plan and the Action Plan for Indigenous Peoples Primary Education Plan for Tribal Children; (i) lessons learned; and (j) any other issue agreed upon between DPE, the Bank and other DPs. At the latest one month prior to the MTR, DPE shall submit to the Bank a comprehensive report which shall cover each of the above-mentioned

October–November

2007

Schedule 6 para 14 Schedule 6 para 46

Being complied with Being complied with

Adequate budget allocation from the government is received in time under Medium Term Budget Framework It is properly used under the Annual Development Plan ADP. It is shared with the development partners each quarter through the Financial Management Report. The MTR was held in 2007. The government’s MTR report covers the main areas as proposed. The MTR reviewed the progress of the activities and discussed major issues and priority areas to be focused in the remaining period. The Project Pro-Forma has been revised to incorporate the agreements reached during the MTR.

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issues. The MTR shall include the recommendation of changes in Program design and implementation arrangements as needed. Agreements reached between the DPE, the Bank and other DPs on changes shall be reflected in a revised PP within four months of such agreement.

48 Appendix 3

Contributions from Development Partners to PEDP-II SWAP

Appraisal Actual

Source Amount in $ million

Percent Amount Percent

ADB administered Loan/Grant ADB L2015 100.0 5.50%

109.3 5.92%

DFID G4209 150.0 8.30%

112.3 6.08%

EC G4209 100.0 5.50%

115.9 6.28%

Government of Netherlands

G4209 50.0 2.80% 46.2 2.50%

NORAD G4209 40.0 2.20%

36.6 1.98%

Sida G4209 29.0 1.60%

33.5 1.82%

CIDA G4209 20.0 1.10% 53.0 2.87%

Subtotal

489.0 26.90%

506.8 27.46%

Parallel Funding

IDA

150.0 8.30%

145.3 7.87%

Government of Japan JICA

3.0 0.20% 5.4 0.29%

UNICEF/AusAID

12.0 0.70%

27.2 1.47% Government of Bangladesh

1161.0 64.00% 1161.0 62.90%

Total

1815.0 100.0%

1845.7 100.0%

AusAID = Australian Agency for International Development, DFID = Department for International Development, EC = European Commission, NORAD = Norwegian Agency for Development Cooperation, Sida = Swedish International Development Cooperation Agency, CIDA = Canadian International Development Agency, IDA = International Development Association, JICA = Japan International Cooperation Agency, UNICEF = United Nations Children's Fund.

Appendix 4 49

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9

Gender and Inclusive Education

1. Introduction: Considering that a large number of primary school–aged children were not attending schools because of various types of vulnerabilities and lack of opportunities in accessing school, it was essential for the Second Primary Education Development Program (PEDP)-II to provide access to appropriate teaching and learning for all children to achieve their full potential and to meet the obligations and requirements as stated in the Education Policy of Bangladesh. Therefore in PEDP-II gender and inclusive education were approached in a holistic manner, to remove barriers children may face for access and participation, in four key areas: gender, tribal children, special needs, and vulnerability. This approach acknowledges that gender should not be treated as a separate issue. At the start of the program, no specific action plan or target was set related to gender and inclusive education. This was developed during the program. 2. The Inclusive Education Framework and Gender: An Inclusive Education Framework was produced under PEDP-II considering four key areas, gender, tribal children, special needs, and vulnerability. Four separate action plans were prepared. The objectives were to identify and remove or minimize the barriers children may face to access and participate in education. It focused on creating an inclusive culture based on the principle that all learners have a right to education irrespective of their individual characteristics or differences and responding to the right to access school on an equal basis within the mainstream classroom, wherever possible. It is important that within the difficulties and challenges the community faces, and the sacrifices required in sending children to school, poor parents must see their children benefit from attending. For girls, many different influencing factors are involved that were considered in the gender action plan. The Inclusive Education Framework considered a comprehensive approach to overall school development that requires teacher development, student access, and support and awareness from within the entire education system and the community in which the school exists.24 3. Institutional Arrangement and Resources: The Inclusive Education Framework and the related action plans were relevant as the activities were integrated within the program addressing quality of education, teacher recruitment and training, access, and retention. They contributed directly towards achieving the program objectives. An Access and Inclusive Education Cell was established within the Policy and Operations Division of the Directorate for Primary Education (DPE). This cell was responsible for developing the Inclusive Education Framework and ensuring the implementation of the four action plans on gender, special needs children, vulnerable groups, and tribal children. A total of 64 staff positions were created for inclusive education at the district levels. A technical support team of international and national specialists was fielded to provide technical advice and guidance from the beginning of 2007 until mid-2009. Training modules and materials addressing inclusive education and gender aspects were developed and integrated in all inclusive education training programs. A gender tool kit was also developed with assistance from UNICEF. The government approved a policy to open preprimary class in all schools. Innovation grants were in place for nongovernment organizations to create opportunities for different excluded groups. 4. Practical benefits achieved: New employment opportunities were created for 45,000 teachers, of which 60% were women. The qualification requirements for the appointment of women teachers were reduced, which helped in achieving the 60% quota in GPS and 50% in RNGPS. Additional classrooms were constructed in the overcrowded schools and provided

24

Inclusive Education Framework, PEDP-II.

50 Appendix 4

with child-friendly furniture. The new classrooms were built with ramps to facilitate access for children with physical disabilities. A total of 5,000 toilets were constructed in 2,500 schools to provide separate facilities for girls and boys, and 18,000 arsenic-free tube wells were sunk. Ten hostels in Chittagong Hill Tracts were constructed to provide accommodation for students living in very remote areas. Guidelines on seating arrangements for children with disabilities were provided to the inclusive education focal point in every school, together with a set of screening tools. A total of 7,869,426 students received cash stipends. 5. Strategic intervention: Staff at all levels was trained on inclusive education. An intensive awareness campaign on inclusive education using a mix of modalities to capture the attention of parents and communities was instrumental in motivating communities about education for all children. Because gender parity in enrollment does not demonstrate equity in participation, full participation in the classroom, classroom practices, the school environment and facilities, as well as teacher behavior and attitudes were considered important factors in influencing an equal education outcome. A regulatory provision was introduced that required that of the total 12 members of an SMC three should be women, two of which should be a guardian. There has been a large increase in the number of women head teachers in government primary schools (GPS), from 23% in 2005 to 36% in 2010. If the head teacher is male, the teacher representative must be female. These steps were relevant to serve women’s strategic interests by putting them in decision-making positions. 6. Human Development: PEDP-II attempted to bring the out-of-school children to school and achieve gender parity in enrollment and completion. The gross enrollment rates and net enrollment rates increased for both boys and girls. The gender parity index for the gross enrollment rate was 1.09 in 2010 compared with 1.05 in 2005. The gender parity index reached 1.06 in 2010 from 1.07 in 2005. Enrollment disparity continued between boys and girls. The lowest share of boys was in the eastern part of the country. Enrollment in preprimary class was higher for boys (51.8%) than for girls (49.5%). Dropout rates fell for grades 1–4 but increased for grade 5; in 2010, the rate for girls was 39.3% and for boys 40.3%. By contrast, the enrollment of girls outnumbered that of boys among the new entrants in grade 6. In 2010, the pass rate in the final examination in grade 5 was 91.2% of those who appeared and 80.9% of eligible students. The completion rate was 60.2%. Some demand factors for boys’ employment must have an effect on this rate. The repetition rate was almost same for boys (12.8%) and girls (12.4%). The net attendance rate in primary school for girls was 82% and for boys was 80.2%. The enrollment of a number of children with disabilities (physical, visual, hearing, speaking, mental) had doubled by 2010 compared with 2005. The number of disabled children enrolled in school increased from 45,680 in 2005 to 77,488 in 2008. 7. As mentioned, 60% of the newly recruited teachers were women and in 2010. In GPS 63% of the assistant teachers were women compared with 50% in 2005. In registered nongovernment primary schools (RNGPS) the proportion was 42% in 2010 compared with 36% in 2005. In-service training was provided to 105,500 teachers. The proportion of male teachers receiving training was 203% higher among men, showing that more attention is needed for training of women. The main human development benefits achieved by the program are listed in Table 1. No specific targets were set, other than in the program matrix.

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Table 1: Gender Achievements (with baseline and target if available)

Achievements Total Women/

Girls Men/Boys

1 Gross enrollment rate, 2010 (93.7% in 2005, target: 98% with gender parity)

107.8% 112.4% 103.2%

2 Net enrollment rate, 2010 (87.2% in 2005, target: 90% with gender parity)

95.6% 97.6% 92.2%

3 Teachers, 2010 (36.3% women in 2005, no target but quota for new recruits: 60% GPS, 50% RNGPS)

395,652 194,538 (49.2%)

201,114 (51.8%)

4 Students in all schools, 2010 (no target)

16,957,894 8,563,133 (50.5%)

8,394,761 (49.5%)

5 Grade 1 students with preprimary education, 2010 (no baseline, no target)

42.3% 44.0% 40.7%

6 Primary completion rate at age 11, 2010 (total 26% in 2006, no target)

35% 37.1% 33.1%

7 New entrants in grade 6, 2010 (transition rate target was 96%; latest available calculation is 2008, 97.5%, no target for number)

2,321,961 1,265,518 (54.5%)

10,56,553 (46.5%)

8 Gender division of head teachers in GPS (23% women in 2005, no target)

36%

54%

9 Students enrolled in preprimary, 2010 (no baseline, no target)

895,524 442,881 (49.5%)

451,643 (51.5%)

Source: Annual Sector Performance Report, 2011. 8. Constraints and challenges: Effective and efficient implementation of inclusive education involves all parts of the system embracing and reflecting the principles of inclusion and recognition of the cross-cutting nature of inclusion. The Access and Inclusive Education Cell within the DPE provided an institutional home for inclusive education but its capacity and authority to support inclusive education as a cross-cutting concern was limited. Focal points were identified within each line division in the DPE to report and liaise on progress and to implement the action plans, but coordination and monitoring of activities were diminished. The consultant team was fielded late and suffered from a shortage of required specialists. The early completion of the inputs of the specialists, before developing adequate capacity within the Inclusive Education Cell, created a problem. Recruitment for the seven posts in the cell did not take place, and the district level positions were filled very late. A gender-disaggregated database has been developed; however, reporting on a disaggregated basis is not yet practiced practice in several areas, such as in training, stipends, and disabled children. 9. Although the enrollment rates show gender parity, disparities continue between boys and girls. Variations between boys and girls by district and at the upazila level—in terms of repetition, dropping out, and completion—require differentiated and targeted interventions to overcome. Because inclusive education is a new concept to the system, training has extensively covered all levels within the system but only head teachers and one focal point at the school level. It was essential that the teachers receive training and that the issues covered be incorporated into the Dip-in-Ed and all other teacher training. 10. Despite the overall target of ensuring water and separate sanitation facilities for girls by 2010, only 37% of GPS had specific toilets for girls, with variation between 18% and 72%. In

52 Appendix 4

RNGPS only 20% of schools had specific toilets for girls, which poses a challenge related to motivation, awareness, and resources. About 71% of schools have safe water facilities and the rest are yet to ensure it. The management and operation of the hostels in the Chittagong Hill Tracts is a challenge, even though those have been transferred to the Ministry of Chittagong Hill Tract Affairs, because the management modality was not developed before the transfer. Education for tribal children in their native language remains a challenge. A major challenge is to bring in the large number of children who are still out of the school system. 11. Lessons learned: The use of the innovation grant was limited, and the lessons learned and its utilization could not be captured. Some lessons from the rest of the program:

Understanding of inclusive education as a cross-cutting element is essential. Inclusive education required coordination between line divisions, field offices, and institutions and between ministries and across the system.

Removal of social barriers against inclusion takes time and resources, and efforts should continue.

Teachers’ education on inclusive education is essential to ensure the learning and participation of all students. It is essential that in-service training provide strategies for teaching students with wide range of abilities and backgrounds.

Textbook revision should involve input from gender specialists and tribal community representatives.

Mechanisms should be identified that allow for experience of teaching in nongovernment organization schools to be credited in lieu of qualifications for recruitment to teacher service, especially in remote and understaffed areas.

SLIPs should focus on improving the quality of teaching and learning, on removing barriers that children face in participating, and on initiatives to support students with learning difficulties.

Promotion of school self-assessment on inclusive education by providing guidelines and criteria is helpful.

Identification of pockets of disparity in overall enrollment, achievement, and retention and between girls and boys is essential for providing targeted interventions on a local basis.

Gender-disaggregated data is essential, and analysis of data is important for targeting interventions.

The modalities for the use of innovation grants should be simpler, and lessons should be captured for application.

As the framework included four action plans, instead of giving achievements by action plan, a summary of the main achievements against the relevant PEDP-II objectives appears in Table 2. 25 Where possible, the table identifies the quantitative target, which is drawn from the program framework. Most of the important activities are not quantitative but qualitative.

25

Jacqui Mattingly. Ensuring the Inclusion of All Children in Primary Education- A review of the action plans under PEDP-II and Strategies for PROG 3.

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Table 2. PEDP-II Objectives and Achievements

PEDP-II Objective Key achievements

Objective 1:

To enhance the capacity of the Ministry of Primary and Mass Education (MOPME) and the DPE to ensure a quality and equitable provision of primary education

The Access and Inclusive Education Cell was established within the DPE as an institutional home for inclusive education. In 2009, seven posts were created within the cell and were filled by promotion or transfer of officers from existing posts.

Orientation training on inclusive education was provided for all officers within the DPE.

Interministerial and field-level DPE workshops were held to develop training manuals on inclusive education.

Objective 2:

To enhance the capacity of the education management information system to support all DPE monitoring and evaluation functions

Some changes were made in data collection to identify children with special needs and tribal children.

A house-to-house survey was conducted by primary school teachers within all catchment areas during 2010 to provide more accurate information on the numbers of school-aged children.

Objective 3:

To enhance field-level capacity at divisional, district and upazila levels to meet the development needs of PEDP-II and the increasing demands of the formal primary education sector at the school and community levels

All field officers completed a 3-day training course in inclusive education by the end of PEDP-II.

A short orientation module on inclusive education was incorporated into all training courses for officers at all levels in the system.

In every district, one assistant district primary education officer was appointed in 2009 as an inclusive education focal point. These posts were filled by promotion from upazila education officers. The focal points received 5 days of training in inclusive education and their job description has been agreed.

Objective 4:

To enhance and improve the capacity of school organization and management at the local level.

All School Management Committee (SMC) chairmen participated in a 1-day orientation training on inclusive education.

Inclusive issues were incorporated into SMC training and training for school-level improvement plans (SLIP).

54 Appendix 4


Objective 5:

To improve the physical environment for schooling

Additional classrooms were constructed in the most overcrowded schools and provided with child-friendly furniture. Ramps were built to facilitate access for children with physical challenges. (95% of revised target of 42,350).

Some 5,000 toilets were constructed in 2,500 schools to provide separate facilities for girls and boys, and 18,000 arsenic-free tube wells were sunk. (For girls, 37% of the targeted 60% of schools; target not met. Target of tube wells in 60% of the schools achieved.)

Ten hostels in the Chittagong Hill Tracts were constructed for accommodation for students living in very remote areas with no access to existing GPS.

Guidelines on seating arrangements for children with special needs were provided to the inclusive education focal point in every school, together with a screening tool.

Objective 9:

To enhance the quality of teaching in primary schools through the improved recruitment and status of teachers

During 2009–2010, a focal point for inclusive education was identified in every school and a job description agreed. These teachers and head teachers received 3 days of training on inclusive education, including the use of a screening tool to identify children with hearing and visual problems. The focal points were to train the other teachers in the school to use the screening tool to screen every child on entry to school and every year on school health days. It is expected that children in need of medical intervention will be identified and referred to appropriate specialists, and children with learning difficulties can be identified and provided interventions to help them in their learning.

Objective 11:

To improve the physical and professional quality of Primary Training Institutes to enable them to deliver quality primary teacher training

Orientation training in inclusive education was conducted in all Primary Training Institutes for all instructors and superintendents. (target achieved)

A focal point for inclusive education was identified in every Primary Training Institute.

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Objective 12:

To improve the quality and delivery of in-service primary teacher training as an extension to the initial teacher training program, through a sequence of career development modules

Inclusive education training materials were developed and will be incorporated into all teacher training courses before the end of PEDP-II.

Objective 13:

To improve the quality of head teachers as a key element in achieving quality and teaching and learning in primary schools

Inclusive education issues were incorporated into head teacher training, and head teachers were trained.

Objective 15:

To facilitate greater community participation in, and support for, educational improvement in primary schools

To raise public awareness of the rights of all children to education, a 26-episode TV drama was screened in 2009–2010. Interactive theatre performances in every district also raised awareness that education is a basic right for all children. These programs have been enhanced by activities during Education Week and the celebration of Meena day.

Posters have been displayed in a wide range of public places, and publicity brochures on inclusive education have been distributed to key people, including staff at nongovernment organizations.

Community orientation, SMC and Parent Teacher Association orientation included inclusive education issues.

Objective 18:

To alleviate the demand-side and supply-side constraints that prevent millions of children from accessing and participating fully and successfully in formal primary education.

School feeding programs targeted children in the most disadvantaged areas and increased numbers of children in them received stipends from April 2010.

The government approved a plan to establish preprimary classes in every primary school.

Textbooks are supplied to all children attending nongovernment organization schools and learning centers that use the national curriculum.

12. Conclusion: The Inclusive Education Framework, which included gender, was relevant for the promotion of inclusive education in PEDP-II. Despite the achievements, some opportunities were missed because of a lack of orientation at all levels and a lack of efficient use of resources. A good number of resource materials and guidelines were developed that need to be used. Although most of the quantitative targets have been achieved, with current enrollment of girls surpassing enrollment of boys in primary education, the qualitative aspects of inclusion will require increased capacity in the system and commitment from all corners. The challenge is to go beyond the numbers.

56 Appendix 5

Summary Table of Civil Works and Need-Based Furniture accomplished by LGED

Activities Original Target Revised Target Achievement

Factors Causing Achievement Less

than the Target

Construction of new classrooms

30,000 41,000 40,870 Court case, river erosion, land problem, duplication with other project

Construction of attached toilets with teachers room

15,000 18,500 18,428 Land problem

Sinking of arsenic-free tube wells (safe drinking water)

15,000 18,247 17,275 Problem with sweet water layer, saline water at coastal zone

Extension and repair of Upazila Education Office

450 456 455 Himchar UEO Extension (in Chandpur) could not done due to river erosion

DPE headquarters repair and maintenance

1 1 1

Extension of District Primary Education Office

54 58 58

Extension and renovation of the National Academy of Primary Education

1 1 1

Renovation and extension of PTIs

53 53 53

Construction of Upazila Resource Centers

397 397 397

Construction of primary school-cum-cyclone shelter

398 395 Court case, river erosion, land problem

Construction of separate toilets for male and female students

5,000 4,754 Land problem

Supply of need-based furniture to government primary schools

Bench-800,000 pairs, Chair-

165,000, Table-112,000


75,193, Table-53,905


74,644, Table-53,623

Construction of hostel in Hill areas

10 10

Supply of generator at DPE headquarters

1 1

Installation of lift at DPE headquarters

2 2

School Repair 157 157 Upazila Resource Center repair

94 93

Note: The information in this table is based on information from the project document and Completion Report of LGED received by the Program Liaison Unit in November 2011.

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Infrastructure Activities 1. One of the major activities under PEDP-II was infrastructure development, which entailed renovating and constructing a large number of classrooms and toilets; renovating and extending PTI facilities; renovating and or constructing new URCs; and renovating, extending, or constructing new office spaces for District Education Officers and Upazila Education Officers. A complete list of civil works undertaken by PEDP-II can be seen in Appendix 5. PEDP-II targeted only government primary schools (GPS) and registered non-government primary schools (RNGPS) but given that some 28% of primary school children attend non-GPS or non-RNGPS schools, the demand for classroom space will continue to exist for some time. A. Establishing Demand 2. In PEDP-II the rationale for building classrooms was to increase access and reduce double shifts so that student learning contact hours may be increased. In recent years the increased internal population mobility, driven by employment opportunities (as can be seen in Gazipur), has been creating the demand for double shifts. As people move internally, classrooms built elsewhere become redundant. This presents planning dilemmas that need more discussion and alternative ways to plan school construction. Similarly, cyclone- and flood-prone areas also may require the consideration of new design and construction technologies— particularly where schools are regularly damaged or destroyed by these natural disasters. 3. The current practice of using predetermined modular designs for classroom constructions is easy to manage, but it does not allow targeting of actual demand. For example, one of the schools visited during the PCR mission field trip revealed that at a school that had a three-classroom vertical extension building, additional classrooms were built on top of the existing structure, irrespective of the actual demand, which could have been for two classrooms only. It was noted during the field trip that at some schools classrooms were used for storage or left empty, whereas other schools were holding classes in open sheds exposed to the weather. 4. Similarly, visits to two Primary Training Institutes during the PCR mission revealed that classrooms were often used for storing furniture and in some large classrooms, the room was not used. A folding divider could easily convert these large rooms into two and revert to a large room when necessary. Several PTIs are running double shifts unnecessarily because they could increase their student intake if all available rooms were used for teaching and learning. Also, if the primary teacher training is opened to other quality-assured providers (see Appendix 7 on technical assistance) the demand to expand PTIs may not be significant. 5 Under PEDP-II, 93 URCs were renovated and 397 were newly constructed. The 3 URCs visited during the PCR mission were not being fully used, even when the adjacent schools had either overcrowded classrooms or classrooms in very poor condition. 26 Some URCs conducted one cluster training in a term. URC instructors are also engaged in school inspections. However, it seems that URCs quite often duplicate the function of UEOs. The URCs are not a resource center or library where teachers can come to work on self-development because there are no resources other than a few old books. The URCs seem to

26

One URC had a thick layer of dust sitting on the furniture suggesting it had not been used for over 6 months. Another URC had broken furniture stored in the office and staff rooms. DPE staff acknowledged that usage of URCs needs to increase. The needs-based training approach being developed under PEDP-III is expected to increase the use of URCs.

58 Appendix 6

be a legacy of some earlier project. They may require rethinking about their purpose and cost-benefit analysis regarding the value they add to teacher quality improvement. In many countries, teachers use regular classrooms (with approval of the head teachers) to meet for their professional development, and most teacher professional development workshops are conducted outside teaching time to avoid leaving children without teachers while the teachers attend these workshops. 6. It appears that there is an urgent need to undertake an objective assessment of space utilization in schools, PTIs, and URCs and to adopt new policies regarding what constitutes demand for classroom space and whether building more infrastructure is the best way to improve teacher quality. B. Monitoring Quality and Bangladesh Building Standards 7. The quality of buildings constructed under PEDP-II varies significantly. In some discussions, it was mentioned that in rural areas lower standards were accepted. This must be verified because the national building codes should be applied uniformly to all buildings in the country. If there are any variations for rural buildings, they should be reviewed to ensure that children’s safety is not compromised and that buildings are stable and aesthetically satisfactory. For instance, during the PCR mission field trip, in one rural school classroom floors were concreted without sufficient compaction and without any steel reinforcements. In another school, glass panels used in windows were only 3 mm thick, which will break easily and can cause serious damage to children who come in contact with such sharp edges. Although these might be outlying incidents, they still warrant close quality control. 8. Similarly, lighting and fans in each classroom should be guided by standards. Each fan can move a certain volume of air; thus an optimum number of fans can be calculated. Having dedicated fans for teachers has no added value. Lights placed on four walls tend to throw shadows on books if the light falls from behind children. Also, running electrical cables along four walls costs more than running a single line in the ceilings. Almost none of the eight schools visited during the PCR mission had proper electrical wiring. Temporary, crude wiring with underrated cables and naked connections were seen. These can be a risk if children accidently touch the naked joints; in addition electrical shorting can cause fire. This anecdotal evidence suggests that Bangladeshi building codes might be breached and calls for stronger quality monitoring. 9. The use of a third party for quality assurance monitoring, as implemented during PEDP-II, is a good concept. However, it is important that implementation is done by local companies who have easy and regular access to the sites. PEDP-II used firms based in Dhaka to provide third-party quality assurance; their location which limited their ability to provide close monitoring, because of the cost of travel to rural locations. There are local construction companies in most districts in Bangladesh who can use a checklist to monitor quality. In some countries, development projects (for example, AusAID in Indonesia) have used local companies (from local cities), using special construction stage–based checklists to successfully provide quality checks whereas others have used international companies to ensure the objectivity and independence of their decisions and done sample-based monitoring. In PEDP-III, in addition to third-party validation, a checklist is being developed for monitoring quality of construction for community-based monitoring. Head teachers, SMC members, and other members of the community can use this check list to monitor the construction activities from the contractor.

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10. The current designs and procedure may have served their purpose; perhaps it is now time to undertake a review of designs for “fit for purpose,” particularly to ensure they comply with Bangladesh building codes for safety and have the best quality monitoring option. Doing more of the same will not be helpful or add value. C. Warranty and Maintenance 11. Buildings constructed by PEDP-II are covered by a 12-month warranty. During the visits to the PCR schools, clear information on what the warranty covers and when the period starts could not be shared. Structural elements of most new building are usually covered for periods longer than 12 months under warranty because ground settlement and climate cycles will take a long time to show defects. In some sites visited during the PCR mission field trip, serious cracks and building movements were noted, which cannot be considered satisfactory construction work. For building construction under PEDP-III, it may be prudent to review the warranty arrangement for the civil works. A poorly constructed building becomes a burden to a school rather than an asset. 12. To extend the life of buildings, regular maintenance by qualified people should be encouraged. Untidy patches, damaged windows and doors, multicolored paint, unsecured wires, and electrical cables that are not run through conduit make the learning environment unattractive and counterproductive to attracting children to attend schools. The SLIP initiative has encouraged SMCs to consider regular maintenance. The DPE advised that it is considering pooling the DPE-provided maintenance budget to schools in the SLIP and UPEP funds to allow more substantive and regular maintenance to be carried out. D. Contracting Arrangements with the Local Government Engineering Department 13. In PEDP-II, TST package 4 was for infrastructure. This package was entrusted to the Local Government Engineering Department (LGED) to implement. The work involved identifying demand, prioritizing the construction, selecting and approving the design, building and supervising other subcontractors, monitoring quality, providing reports, and handing the infrastructure over to the SMC and the DPE. The DPE was not actually implementing the construction activities in the field. The LGED and the MOPME had agreed that the LGED, as a public service provider, would be responsible for implementing the construction work. This can best be seen as using the LGED as a shared service center. The agreement was formalized in a memorandum of understanding. The meetings between the DPE, the PLU, and the LGED were for progress reporting only. 14. Working with the LGED has its advantages, because they have perhaps the best outreach of technical personnel, right down to the Thana level, of any single organization in the country. Therefore, for a nation-building construction project they have good capacity. To make sure this arrangement works, proper checks and balances are essential to ensure minimum standards for quality are maintained. It is important to identify the lessons learned from the implementation of the arrangement, especially regarding the division of labor between the DPE and the LGED, and the accountability for decisions made. The LGED (a government entity) received a service fee for its management of the civil works. One of the changes under PEDP-III is that the MOPME and the DPE are now directly involved in demand assessment. The MOPME and the DPE have to make the policy decisions about where to build and be held accountable for these decisions. The LGED, the service provider, should build according to the requirements of the DPE and be held accountable for the quality of construction.

60 Appendix 7

Management of Consultants

1. The intention of this appendix is not to review or evaluate all consultant support provided under PEDP-II. Its aim is to illustrate how the quality of consultant advice can affect the outcome of the program. Progressive evaluation of consultant support, while challenging to undertake, is important to ensure that the Directorate of Primary Education (DPE) is receiving innovative and pragmatic advice. 2. The design had five technical assistance (TA) packages for the project, to be procured with pool funds. Package A was to support the Program Coordination Unit (PCU) and the Program Liaison Unit (PLU), which started operation in 2003 as part of a preparatory phase. The remaining four packages were Technical Support Team (TST)-1 for Organizational Development, TST-2 for Quality in the Schools and Classrooms, TST-3 for Infrastructure Development, and TST-4 for Access. All of them began in 2006. TST-1, TST-2, and TST-4 were procured through quality- and cost-based selection (QCBS) and were done through firms. Most assignments were long-term in-country assignments. TST-3 was revised to recruit two architecture and engineering firms through QCBS to perform third-party quality audits. The main civil works implementation was implemented by the LGED under a service memorandum of understanding to manage, implement, and report on all civil works under the program (see Appendix 5). For TST-1, TST-2, and TST-4, the TA procured through firms lacked flexibility and responsiveness. When flexibility was required, it took a long time to negotiate change and get the consultants on the ground; hence to keep the momentum of the reform activities, additional consultants were provided by development partners, using parallel financing. Also, the quality and expertise of some TA provided by the firms was not fully aligned with the scope of work. It is essential to seek experts who have experience with large, complex systems like those in Bangladesh. Recruiting through a firm that has to consider its margins and then using ADB’s QCBS method, which looks at the lowest cost, does not always attract the high-level strategic advice that is required in certain circumstances. Although there was no formal evaluation of these consultants’ inputs, there is consensus among all stakeholders that the design and coordination of the consultants was not very effective and the performance only partly satisfactory. As a result, TSTs were phased out after the midterm review, and more parallel-funded consultants were recruited. A. TA for Capacity Building of the DPE and the Decentralized System 3. A PCU was established to assist the DPE and the line divisions on day-to-day coordination of PEDP-II, with monitoring the progress of implementation, preparing consolidated reports such as annual sector performance reports and the midterm review, and helping coordinate the work of TSTs to implement the program. Unfortunately, a lack of clarity on roles and functions led to the PCU functioning as project management, which prevented the DPE from taking its required leadership role. The PCU was discontinued in 2006. As the DPE developed capacity in 2006, a Project Management Unit headed by a joint program director was formed to help the DPE coordinate the program. For a sector-wide approach (SWAP), the role of a Secretariat or PCU must be made very clear—they do not implement the project. Under a SWAP arrangement, the project is implemented by the government through its line divisions. 4. The PLU provided critical assistance to the DPE and the 11 development partners to manage and administer the transition from projects and programs to a complex SWAP, which attempted to provide continuity to the 27 previous bilateral projects through an integrated framework. The PLU provided assistance with the procurement procedures, particularly when

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four main procedures (for parallel funds from the International Development Association, ADB, the government, and the United Nations Children’s Fund [UNICEF]) plus procedures for additional TA support provided by individual development partners had to be coordinated to ensure effectiveness. The PLU provided critical support to the DPE in dealing with this complex process and helped prevent the program from becoming a risk. During implementation, the PLU developed a very close and direct working relationship with ADB, in its role as lead donor. As the lead agency, ADB deployed staff over and above its commitment from the Bangladesh Resident Mission to support and manage the PLU. Considering that PEDP-II was the first multidonor-funded SWAP in the education sector and considering the capacity constraints of the DPE, the large number of activities with several cross-cutting themes, new financing modalities, and the expectations of the 11 development partners, having the PLU as a liaison between development partners and the DPE to facilitate procedures was a prudent design consideration. 5. Capacity development provided by consultants in human resource development (HRD), monitoring and evaluation (M&E), and decentralization yielded good results at the individual and project levels; however, the challenge was to sustain results at the organizational and institutional levels. The strategic advice on HRD was jointly developed and accepted. The actual implementation of the plans developed with TA support is the responsibility of the DPE and the MOPME, which face challenges in moving them forward. TA support for the Management Information Cell and the Monitoring and Evaluation Cell has the same challenge with regard to sustainability.27 The local personnel involved were on the program budget, and their transfer to the revenue budget is a slow process that is not yet completed. Cells are not considered part of the formal DPE organizational structure, and the integration of these structures is still in process under PEDP-III. Ensuring that trained people stay in an official capacity is essential; otherwise, all the TA support for capacity development of these cells will be lost. The TA support for implementing the decentralized bottom-up planning process using the upazila primary education plan and school-level improvement plan (SLIP) was sound on a conceptual level. The advice on implementation could not fully and timely address the complexity and time necessary to implement such an activity. The actual consultant support that could be provided for implementation of this nationwide activity was limited when compared with the size and complexity of the activity. PEDP-III has recognized the value of this bottom-up planning process and is pursuing this activity to scale it up nationally and to provide appropriate resources including capacity building and training. B. Quality of TA Support (Improved Quality in Schools and Classrooms) 6. The TST-2 packages to support quality improvement in schools and classroom were procured through a firm using QCBS. At the beginning of the program, the team leader resigned and the delay entailed in finding a replacement dampened the momentum. Reform of the teaching training activity, in the absence of an international team leader to help consider alternative international and regional practices, focused on adjusting the existing Certificate in Education program for 3 years. This time was required to reach consensus on the major reform required for this training program, which resulted in the concept of the Diploma in Education. This diploma is part of PEDP-III and is currently being piloted. 7. Consultant support for teacher development provided excellent advice regarding the process of recruiting candidates for primary teacher training and also the significance of

27

The TA support to implement results-based management was very effective and perhaps one of the major highlights of the program.

62 Appendix 7

compulsory preservice training before entering classrooms to teach. However, the current model used for the delivery of preservice teaching seems unsustainable: mainly government-run Primary Training Institutes (PTIs) are providing training to already recruited but untrained teachers. Despite running double shifts, PTIs cannot provide all the training required; consequently, newly recruited trainers will enter the classroom without a Diploma or Certificate in Education. Instead, they undergo much shorter induction training. With the introduction of the Diploma in Education, the backlog will get even bigger. PTIs have a crucial role to play, but their current capacity is too limited to provide quality preservice training to all. This situation will not improve in the immediate to short term and consequently it will impede the improvement of teacher quality. TA support should have considered alternative models for teacher development, such as separating the standards setting, quality monitoring, and delivery of training services. These three very different functions should be separated to ensure objectivity and avoid conflicts of interest. If primary teacher standards are agreed and a quality assurance system is put in place, the provision of training can be open to quality-assured providers other than PTIs. The extra training providers will help the DPE clear the backlog. Quality-assured providers at the national, district and upazila levels not only can deliver the training more efficiently but will also generate competition among the training providers and consequently improve quality.28 Lessons can be learned from the reforms happening in secondary education teacher development in Bangladesh. C. Additional TA Provided by Development Partner Outside the Program Agreement 8. During the program, especially in the latter part, additional TA support was provided by development partners. The terms of reference for this support was shared as much as possible in the Joint Working Groups for coordination. Parallel financing through, for example, UNICEF, could mobilize TA faster than the contracted firms. Additional TA was provided by the U.K. Department for International Development in governance, infrastructure development, SLIPs and education quality; by UNICEF in SLIP, education quality improvement, and institutional development of the NAPE; by the Japan International Cooperation Agency in the development of science and mathematics packages; by the Swedish International Development Agency in the implementation of results-based management; by the European Union in inclusive education and innovation grants schemes; by ADB in teacher quality improvement, stakeholder consultations, environmental safeguards, and quality of drinking water; and by the World Bank in national student assessment. D. Rethinking TA Support for Primary Education 9. A total of 700 and 1,000 person-months of international and national consultants, respectively, was anticipated. However, at completion, the program had used a total of 366 international and 780 national person-months for all consulting services financed by the pooled funds. No central record is kept of all parallel-funded consultant support. 10. Lessons learned from consultant support provided under PEDP-II are the following:

(i) Procurement methods need to be flexible enough to be able to engage high-level

strategic advice when needed and long-term procedural and implementation support.

28

An additional benefit of having more qualified training providers is that it minimizes the need for the use of the Training of Trainers (TOT) approach. The TOT approach always risks diluting the effectiveness of the training and the message can often get misinterpreted. In addition, sending staff from the DPE to travel all over the country to deliver TOT means work at the DPE gets postponed.

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Using a limited number of packages for long-term contracts does not provide this flexibility.

(ii) Using a rolling design to allow flexibility in procuring suitable TA in a timely manner is crucial; therefore, packaging all TA in large lots through a firm can be a risk. The use of some parallel finance remains a requirement and was a prudent design consideration.

(iii) The option of using long-term, continuous in-country inputs versus long-term with intermittent in-country inputs need to be explored to ensure consistent high-level advice is provided while also ensuring that the TA is not subsumed by the local system and does not risk compromising objective advice to reform.

(iv) The use of TA for institutional capacity-development strategies should consider twinning Bangladesh and international institutions so that capacity is developed within the DPE and also in local institutions which can continue to support the innovations after the completion of the program.

(v) A flexible mechanism of coordination between the DPE, the MOPME, and development partners is required, to ensure prioritization and to prevent duplication of consultant support.

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Contribution to ADB Results Framework Education

Indicator Status Comments

1) Students benefiting from new or improved educational facilities (number) male/female

Male: 12,669,752 Female: 12,926,106 Total: 25,595,858

40,870 classrooms; 23,182 toilets; and 17,275 tube wells were built, as well as 10 hostels for girls; 39,032 schools received School Level Improvement Plans (SLIPs). Assuming a student-to-classroom ratio of 48 on a double shift, and an average of 230 students per school, with all students benefiting from the toilets, tube wells and SLIPs, each student benefits in 1 year. Assuming that on average construction was completed in the second part of the project, usage of a classroom during project period is for two generations of students. For other investments 40% is added, indicating two generations of students benefited. Gender segregation based on percentage of female students is as reported in 2010.

2) Students educated and trained under improved quality assurance systems (number) male/female


A universal grade 5 exam was introduced in 2009 in primary education. This benefited all students in primary education. In 2010 it was conducted again. All 2010 students are counted and all class 5 students from 2009, to avoid double counting.

3)Students receiving direct educational support (number) male/female


PEDP- II conducted a stipend program.

4)Teachers trained with quality or competency standards (number) male/female*

Total: 105,000 Female: 53,550 Male: 51,450

105,000 received Certificate in Education training, for 12 months. No gender breakout is available, numbers are estimated. The other training was not linked to a certified quality standard: 63,000 received inclusive education training, and 607,700 received subject-based training.

Documents

Second Primary Education Development Program · Program (PEDP-I). The government thus initiated the design of the Second Primary Education Development Program (PEDP-II), to be implemented