20151223 pvr 391 l2015 ban secondary primary education … · 2015-12-24 · secondary education,...

Validation Report

Reference Number: PVR-391 Project Number: 30216 Loan Number: 2015 December 2015

Bangladesh: Second Primary Education Development Program

Independent Evaluation Department

ABBREVIATIONS

ADB – Asian Development Bank DMF – design and monitoring framework DPE – Directorate of Primary Education M&E – monitoring and evaluation MOPME – Ministry of Primary and Mass Education MTR – midterm review NAPE – National Academy for Primary Education PCR – program completion report PCU – program coordination unit PEDP II – Second Primary Education Development Program PEDP III – Third Primary Education Development Program PLU – program liaison unit PTI – primary teaching institutes SLIP – school-level improvement plans SWAP – sector-wide approach

NOTE

In this report, “$” refers to US dollars.

Key Words

asian development bank, bangladesh, education, independent evaluation department, millennium development goals, project completion report, results-based management, sector-wide approach, validation

The guidelines formally adopted by the Independent Evaluation Department (IED) on avoiding conflict of interest in its independent evaluations were observed in the preparation of this report. To the knowledge of IED management, there were no conflicts of interest of the persons preparing, reviewing, or approving this report. In preparing any evaluation report, or by making any designation of or reference to a particular territory or geographic area in this document, IED does not intend to make any judgments as to the legal or other status of any territory or area.

PROGRAM BASIC DATA Project Number: 30216 PCR Circulation Date: Sep 2013 Loan Number: 2015 PCR Validation Date: Dec 2015 Project Name: Second Primary Education Development Program Country: Bangladesh Approved

($ million) Actual

($ million) Sector: Education Total Project Costs: 1,815.00 1,845.73 ADB Financing: ($ million)

ADF: 100.00 Loan: (SDR equivalent, million)

100.00 72.03

109.33 71.87

Borrower:

1,161.00 1,161.00

OCR: 0.00 Beneficiaries: 0.00 0.00

Others: 0.00 0.00 Cofinanciers: AusAid, CIDA,

DFID, EC, Government of Japan, Government of the Netherlands, IDA, JICA, NORAD, Sida, UNICEF

Total Cofinancing: 554.00 575.40

Approval Date: 3 Nov 2003 Effectiveness Date: 20 Jan 2004 19 Apr 2004

Signing Date: 20 Jan 2004 Closing Date: 30 Jun 2010 19 Jul 2012 Project Officers:

J. Sarvi B. P. Panth A. Inagaki R. van Dael

Location: ADB headquarters Bangladesh Resident Mission Bangladesh Resident Mission Bangladesh Resident Mission

From Dec 2003 Aug 2004 Jul 2005 Jul 2012

To Jul 2004 Jun 2005 Jun 2012 July 2012

Initial Reviewer:

K. Hardjanti, Consultant

Peer Reviewers: E. Gozali, Principal Evaluation Specialist, IED1 B. Prakash, Consultant

Quality Reviewer:

F. Ahmed, Lead Evaluation Specialist, IED1

Director: W. Kolkma, IED1

ADB = Asian Development Bank; ADF = Asian Development Fund; CIDA = Canadian International Development Agency; DFID = Department for International Development of the United Kingdom; EC = European Commission; IDA = International Development Association; IED1 = Independent Evaluation Department, Division 1; JICA = Japan International Cooperation Agency; NORAD = Norwegian Agency for Development Cooperation; OCR = ordinary capital resources; PCR = program completion report; SDR = special drawing right; Sida = Swedish International Development Cooperation Agency; UNICEF = United Nations Children's Fund.

I. PROGRAM DESCRIPTION

A. Rationale

1. The Government of Bangladesh launched the Second Primary Education Development Program (PEDP II) 1 in 2004 as a sequel to the PEDP I to expand access to quality primary education for all eligible children in Bangladesh. During the 1990s, Bangladesh had made significant progress in increasing initial enrollment and in achieving gender equality but there was no tangible improvement in the completion rates or in the quality of education. Thus, the emphasis of the PEDP II was access and quality. 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.

2

2. The PEDP II was built on the implementation experiences of the PEDP I. Under the PEDP I, the government had sought to improve the education sector by targeting sector investments to address specific problems and deficiencies. Consequently, two dozen separate projects were carried out under the PEDP I. However, expected outcomes did not materialize, and implementation suffered from weak coordination and duplication between concerned ministries, directorates, and development partners. To overcome the identified weaknesses, the PEDP II was prepared, taking a more holistic perspective of sector development by adopting a programmatic sector-wide approach (SWAP) to implementation and development outcomes. With the support of 11 development partners, the PEDP II was presented as a more integrated and coordinated subsector program, with the Asian Development Bank (ADB) playing a lead role in helping the Ministry of Primary and Mass Education (MOPME) design the program. Financed through a common pool of funds, the PEDP II focused on improving the quality of primary education and promoting the organizational and institutional development to support coordination, subsector planning, management, and monitoring. Through the SWAP modality, the government and development partners pursued a common set of outcomes, outputs, and key performance indicators for sector investment initiatives underpinned by a comprehensive policy and institutional reform framework. Although focused on the primary education subsector, the program was also designed as a catalyst for wider sector reform to strengthen links with secondary education, such as institutional restructuring and organizational development for both primary and secondary education.2 B. Expected Impact 3. Although the term “impact” was not explicitly used in the program documents, the overall program goal, as specified in the report and recommendation of the President, is the most suitable proxy for the program’s intended impact of “reduced poverty through universal primary education and sustainable socioeconomic development and equity in Bangladeshi society as envisaged in the Millennium Development Goals.”3

C. Expected Outcome

4. The term “outcome” was also not used in the project documents and so the program’s purpose statement of “providing primary education to all eligible children in Bangladesh” can be taken as the nearest equivalent to a suggested program outcome of “universal primary education achieved for all eligible children in Bangladesh.”

D. Outputs

5. The PEDP II supported five program outputs: (i) quality improvement through organizational development and capacity building; (ii) quality improvement in schools and classrooms; (iii) quality improvement through infrastructure development; (iv) improved access for the poorest and socially excluded; and (v) program management, monitoring, and evaluation. The program completion report (PCR) noted the revisions of output targets in the 2007 midterm review (MTR), which included the need to respond to Cyclone Sidr, but did not give a detailed explanation of the rationale for the changes. This validation thus assumes that the PCR’s design and monitoring framework (DMF) and text reflect the MTR’s revised set of outputs, sub-outputs, and associated indicators against which the performance of the PEDP II was evaluated.

2 Footnote 1, para. 12. 3 ADB. 2013. Completion Report: Second Primary Education Development Program in Bangladesh. Manila.

3

E. Provision of Inputs

6. At appraisal, the estimated total cost for the PEDP II was $1.82 billion equivalent. The government’s share was approximately $1.16 billion (64.0% of the total cost), with the development partners funding the balance of $0.66 billion (36.0%). ADB’s contribution of $100.00 million represented 5.5% of the overall program cost, which rose to 6.0% by the end of the project. Relative contributions are reflected in Table 1.

Table 1: Financing Plan

Cost

Appraisal Estimate ($ million)

% of Total

Actual ($ million)

% of Total

Implementation Costs

Borrower-Financed 1,161.00 64.0 1,161.00 62.8

ADB-Financed 98.36 5.4 108.22 5.9

Other External Financing 550.64 30.3 573.13 31.1

Total 1,810.00 1,842.35 IDC Costs

ADB-Financed 1.64 0.1 1.11 0.1

Other External Financing 3.36 0.2 2.27 0.1

Total 1,815.00 100.0 1,845.73 100.0 ADB = Asian Development Bank, IDC = interest during construction. Source: ADB. 2013. Completion Report: Second Primary Education Development Program in Bangladesh. Manila.

F. Implementation Arrangements 7. The Directorate of Primary Education (DPE) led program implementation, with the support and guidance of the MOPME. Through the PEDP II–funded program coordination unit (PCU) at the national level and with support from the PEDP II–funded technical support teams, the DPE divisions integrated the program interventions into their annual work plans and implemented activities through the division- and district-level offices. As far as possible, the intention was to limit the distinctions between the PEDP II and traditional DPE activities. In 2006, the PCU was phased out and a program management unit (PMU) headed by a DPE-funded program director was formed to coordinate the PEDP II. To speed up the development process and improve governance and accountability, the major reform initiative of the PEDP II during implementation was to develop a system to further devolve functional authority and responsibility for primary education management to the subdistrict and school levels. 8. A project steering committee consisting of senior government representatives from key ministries, divisions, commissions and districts, and upazila (subdistrict) levels was established.4 In addition to the PCU, a program liaison unit (PLU) managed by ADB, was established to assist the DPE and the MOPME in administering the transition to a SWAP and facilitate liaison with the development partners. Development partners were organized in a consortium, chaired by one of the partners on a rotating basis. They participated in sector

4 The project steering committee’s responsibilities were to (i) approve annual operating plans and related budgets,

(ii) approve reports, (iii) provide policy and operational guidance, (iv) undertake interministerial coordination, and (v) resolve conflicts.

4

working groups that coordinate with the DPE and technical assistance teams. As lead donor, ADB was a permanent vice-chair. The working groups were tasked to broaden the involvement of local stakeholders and increase their ownership of the program.

II. EVALUATION OF PERFORMANCE AND RATINGS

9. This validation benefited from a field visit by Independent Evaluation Department staff in June 2015 during which various extensive interviews were held with staff from ADB’s Bangladesh Resident Mission and staff of the DPE who had been engaged in project implementation and monitoring. Staff engaged in the follow-on Third Primary Education Development Program (PEDP III) were also consulted to assess how this project benefited from the lessons learned from PEDP II.

A. Relevance of Design and Formulation

10. The PCR rated the program highly relevant, stating that the design was relevant, innovative, and significant. The relevance criterion considers the relevance of the objectives and the design. It assesses the extent to which (i) the proposed outcomes are consistent with the country’s development priorities and strategy, beneficiary needs, and ADB’s country and sector strategies and corporate goals and policies, at appraisal and at completion; (ii) the results chain on inputs, activities, outputs, outcomes, and impacts is logical and the underlying assumptions appropriate; and (iii) the formulated design and its approaches (including the modalities and instruments), respond to the identified problem appropriately. 11. The PEDP II covered 85% of the primary education sector. The inherent complexity of a national education system, and the range of objectives and target groups that had to be served resulted in the development of a complex cohort of assurance, indicators, and targets for measuring the progress of the primary education sector. The donor intervention looked to secure a large number of assurances from the government, which started with 13 assurances for the government to comply with and ended with more than 50 assurances (PCR, para. 37). In designing the monitoring indicators, the post-MTR DMF aimed to track 12 impact and outcome indicators and 37 sub-output indicators spread across the 4 main outputs. This validation noted the lack of any relative weighting or hierarchy of project outcomes, outputs, and indicators that often lacked baseline values. In addition, compared with the cost of the program, some of the targets were relatively modest. Finally, given that the rationale of the project was primarily focused on enhancing quality as opposed to access, there was a paucity of indicators on quality or learning outcomes. 12. Following the 2007 midterm review of the PEDP II, which was undertaken after Cyclone Sidr, there was a significant change in resource allocation with school construction and rehabilitation output getting a large increase at the expense of the capacity-development and teacher-training activities planned. The MTR also rationalized indicators and targets, though it was unclear if these changes were envisaged to affect the achievement of the intended PEDP II outcomes.5 13. In spite of the above, the PEDP II’s objectives were closely aligned to the government’s national poverty reduction strategy and education sector priorities, with primary education being 5 In 2009, the government, on its own initiative and outside of the PEDP II, introduced a nationwide test on core

competencies in language (Bangla and English) and arithmetic. Given the paucity of data and the ability of the government to influence pass rates, how effective the test was as a measure of quality is being debated although the initial results were nevertheless used by the PCR.

5

a key subsector. The PEDP II was also aligned with ADB’s priorities for the education sector. Continued support for the primary education subsector (through the PEDP III that is currently being implemented) supports the claim that primary education has remained relevant at the end of the PEDP II. This validation notes that the program was flexible enough to adjust to the MTR changes and the rehabilitation requirements in the immediate aftermath of Cyclone Sidr. 14. The PEDP II SWAP design had a number of innovative features with the potential to transform the management of the sector. It sought to (i) strengthen alignment of external assistance with national priorities and objectives through pooling of donor financing to fund a sector program; (ii) significantly improve coordination between the government and development partners on policy and procedures; (iii) harmonize the processes of different development partners; (iv) develop national capacities; and, most importantly, (v) reorientate thinking in the government about sector management—in particular, the inefficiencies behind the separation of the development and the recurrent budgets for primary education, which had resulted in suboptimal resource allocation. In addition, the development budget was being implemented through a series of stand-alone projects, often related but disconnected and cofinanced by different donors. Consequently, the government had not been able to leverage the development budget to develop and sequence initiatives with a long-term vision. 15. In conclusion, the PEDP II sought to pursue uncharted territory through its SWAP approach. Clearly, there were teething problems as this was a first SWAP for this sector, but this validation deems it important that the government was put in the driving seat on sector development and that PEDP II enabled significant streamlining of procedures and processes from both the donors’ and the government’s side. The lessons learned made possible the design of a results-based lending modality, which the subsequent PEDP III project adopted. On the basis of these innovative design features, this validation thus assesses the PEDP II highly relevant.

B. Effectiveness in Achieving Project Outcome and Outputs

16. The PCR rated the PEDP II effective. Of the 14 impact and outcome key performance indicators, 8 (57%) achieved the planned targets, and 6 (43%) required either a review of the interventions or continued support to reach the targets (PCR, para. 50).6 The PCR did not provide any relative weights for respective targets. Development partners and the government were not consistent in determining the critical outcome indicators to measure. Based on the information presented in the PCR, the gross enrollment rate and the net enrollment rate exceeded targets; the target to reduce absenteeism in primary education was also reached. The public share of primary education as a share of total public expenditure also reached its target. Some targets, such as the dropout rates for Grade 5 and reduced repetition rates, were not reached although there were indications that performance had improved compared with the start of the project. 17. On output achievements (Table 2), the DMF tracked 37 key performance indicators, of which, 10 or approximately 27%, substantially met their targets. The fifth output on program management, not listed in the table, did not have any indicators or a target to measure. The PCR did not comprehensively analyze the consequences for the PEDP II outcomes with unmet output targets, although it did highlight seven critical output targets that had to be passed on to

6 In reality, there were 12 impact and output indicators as per the PCR’s DMF, and achievements were similar to

what is stated in the text.

6

the PEDP III for completion. 7 The partially approved outputs included those that were strategically important in organizational development and, as such, the sustainability of the program such as human resources development and management strategy, devolution plan, and the strategic development plan for the National Academy for Primary Education (NAPE).

Table 2: Achievement of Output Indicators

Output/Sub-Output Total Completed/ Substantial

Partially/ Not

Reached Uncertain PEDP II Total 37 10 22 5 Output 1: Improved quality in organizational development

and capacity building 9 1 8 0 Output 2: Improved quality in schools and classrooms 12 4 8 0 Output 3: Quality improvement through infrastructure

development 10 3 4 3 Output 4: Improved access for the poorest and socially

excluded 6 2 2 2 PEDP = Primary Education Development Program. Source: ADB. 2013. Completion Report: Second Primary Education Development Program in Bangladesh. Manila. p.16. See Appendix for the full analysis of outputs and outcomes. 18. On the output targets achieved, such as the capacity of the DPE to manage the PEDP II, there was (i) lack of post-training evaluation to ascertain any value analysis of the training provided, (ii) continuing vacancies at the DPE national and regional offices, (iii) inability to fully utilize the technical support teams, and (iv) slow progress in absorbing staff engaged under the PEDP II into the DPE administrative structure. The latter hampered the mainstreaming of the PEDP II initiatives into the overall DPE work program, effectively treating the PEDP II as a separate program (PCR, para. 46). 19. On empowering schools and upazilas to control education outcomes, the PCR noted (PCR, para. 47) that even for those schools using school-level improvement plans (SLIPs), there was inconclusive evidence to suggest that the SLIPs incorporated the output indicators (PCR, para. 52) accepted nationwide to ensure a national standard for measuring progress. The insufficient investments in the upazila resource centers and primary teaching institutes (PTIs) hampered the improvement of teacher quality. The lack of agreement with development partners on a Certificate or Diploma in Education for teachers compromised the quality of all training for new and untrained teachers (PCR, para. 18). Consequently, the key target of increasing student/teacher contact time by reducing double shifts showed that only 14% of schools were operating on a single shift in 2009. 20. Another key determinant of outcomes and outputs was the government’s delivery of the agreed PEDP II assurances. These assurances detailed the suite of regulatory, policy, and administrative measures to create the enabling environment for the investment initiatives to succeed. The PCR noted that the government complied with only 27 (47%) of the 57 assurances (PCR, para. 37). Similar to the outputs above, the key PEDP II assurances that were not complied with were carried over to the PEDP III. 21. Overall, the sheer number of targets, the lack of hierarchy between them, and their paucity in relation to the quality of outputs, made the assessment of the PEDP II’s effectivity in achieving intended results challenging. These issues were discussed with the government 7 Examples are the development of the upazila primary education plans and the school-level improvement plans

(SLIPs), the strengthening of the school management committees, and the development of better methodologies to assess learning outcomes.

7

counterparts who argued that taking a rigid quantitative approach to output achievement was inappropriate. Prima facie, a quantitative achievement of only 57% of impact/outcome targets, 27% of the output targets, and 47% of the assurances would not justify an effective rating. However, the Independent Evaluation Department, after the special mission to Bangladesh in July 2015, corroborated that some unintended outputs and outcomes had the potential of improving sector management. 22. The PEDP II established a monitoring framework for the sector that facilitates reporting and planning. Further, the government stressed the improvement in sector management. The PEDP II forced a rethinking of how the development and recurrent budgets would be utilized. New teacher recruitment undertaken under the PEDP II merit-based approach could not have been carried out utilizing the recurrent budget that had to follow existing recruitment rules. However, once hired under the development budget, the teachers were absorbed into the ministry’s teaching pool and in subsequent years their salary was paid out of the recurrent budget. The new merit-based approach has now been adopted for all new teachers in the primary sector. This convergence of the development and recurrent budget expenditures increased efficiency, reduced duplication, and enhanced the government’s capacity to leverage donor financing to fund pilot initiatives that could be replicated. This validation thus assesses the program effective.

C. Efficiency of Resource Use in Achieving Outcome and Outputs

23. The PCR rated the program efficient. The economic internal rate of return is the recommended standard measure of efficiency but no economic internal rate of return calculation was shown for the project. On the shorter time frame of process efficiency, the PCR highlighted two main areas of efficiency: (i) infrastructure, specifying the additional civil works required to repair Cyclone Sidr damages; and (ii) the supply of textbooks and teacher-learning materials. Table 3 highlights the increase in the allocation to infrastructure from 19% at appraisal to 33% at the MTR to accommodate the rehabilitation of schools damaged by Cyclone Sidr in 2007. Thus, the increased number of schools rehabilitated was matched with increased funding and is not indicative of increased efficiency.

Table 3: Cost Allocation by Outputs at Appraisal and Completion Output/Sub-Output

Appraisal ($ million)

% of Total

Actual ($ million)

% of Total

Output 1: Quality improvement through organizational development and capacity building

50.18 3% 77.39 4%

Output 2: Quality improvement in schools and classrooms 510.78 28% 384.03 21% Output 3: Quality improvement through infrastructure development 335.37 19% 602.75 33% Output 4: Improved access to quality schooling 891.16 49% 758.45 41% Output 5: Program management, monitoring, and evaluation 22.51 1% 19.73 1%

Total 1810.00 100% 1,842.35 100% Note: Component 4 actuals calculated from difference of total less other components. Sources: 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. Table 1: Cost Estimates; and ADB. 2013. Completion Report: Second Primary Education Development Program in Bangladesh. Manila. p. 4.

24. The project experienced considerable delays at the start of implementation and took 2 years longer to complete. The government and the donors faced some significant challenges with respect to understanding how to prepare for such a SWAP arrangement, and how to design and sequence the interventions. An institutional analysis was not undertaken at the design stage to diagnose the capacities needed for SWAP implementation and the agreement needed between the development partners on the most relevant technical assistance required. The

8

PCR noted the government’s recognition of its own weak capacity in results-based management, performance-based financing, monitoring and reporting, and its reservations on the SWAP. There was also a blurring of responsibilities, expectations, and mutual accountability among development partners for a modality that was predicated on a harmonized approach. Some development partners opted for parallel cofinancing rather than pooled funding, and although funds from 11 development partners were pooled into a single account to fund commonly agreed sector targets, the government was still expected to abide by each development partner’s procurement rules, follow ADB procedures for disbursement, and produce separate accountability reports. Based on the above, this validation assesses the PEDP II less than efficient. 8 D. Preliminary Assessment of Sustainability 25. The PCR rated the PEDP II most likely sustainable. The sustainability criterion looks at the probability of human, institutional, financial, and natural resources being sufficient to maintain the outcome achieved over the economic lifetime of the project and to ensure that any risks can be managed. 26. In large part, the ensuing PEDP III program is proof of the commitment of the government and the development partners to achieving the primary education sector outcomes. Further, the interventions under the PEDP II are embedded in the work program of the DPE, ensuring continued support and increased likelihood of sustainability. The PEDP III began implementation almost immediately after the PEDP II was completed. Although the PCR did not give a comprehensive analysis of the implementation experiences from the PEDP II, the PEDP III has incorporated a results-based lending modality that integrates much of what the PEDP II SWAP was trying to achieve. 27. The PEDP II enhanced the capacity of both development partners and the government to look at education from a sector-wide perspective while acknowledging that the PEDP II’s implementation and objectives were ambitious. There is a general consensus that the SWAP concept was not the issue but rather ensuring that the necessary and sufficient conditions were created for operationalizing the approach. The PEDP II did create an environment that would sustain sector outcomes—such as the development of the devolution plans, human resources development plans, and school level improvement plans that are either in the process of being reviewed or approved or are being implemented during the PEDP III. The process of institutional capacity at all levels of school management and the devolution of authority and accountability has begun. It is too soon to declare these successful and the government will have to ensure that the legal and policy frameworks underpinning the investment decisions are implemented, and commit to providing the necessary resources. Overall, this validation assesses that the PEDP II achievements are likely sustainable.

E. Impact

28. The PCR did not give an explicit assessment of the project development impact as the discussion focused on the project’s outcome indicators. Given the slow implementation, there was some intended impact of a SWAP arrangement on government but the PCR did not provide

8 ADB’s South Asia Regional Department suggested an efficient rating for use of resources, arguing that (i) the

economic internal rate of return of the PEDP II was estimated by the World Bank in 2014 to range between 16% and 23%, and most likely on the higher side; and (ii) the PEDP II, being a SWAP project, merits similar assessment of the economic internal rate of return among participating partners.

9

any evidence of the project’s wide-ranging positive impact either institutionally or at the socioeconomic levels. Much still needs to be done in the education sector; the PEDP II targets were modest, notwithstanding the achievements. This validation assesses the impact of the PEDP II moderate.

III. OTHER PERFORMANCE ASSESSMENTS

A. Performance of the Borrower and Executing Agency

29. The PCR rated the performance of the borrower and the executing agency satisfactory. The government was unprepared to handle the challenging demands of a large PEDP II program and the consequences of leading the implementation of a SWAP modality in unchartered waters. The PCR noted that the government gained confidence following the MTR and took greater ownership of the targets. Following the disbandment of the PCU, the DPE took control of program coordination, although it still relied on the PLU to coordinate with the development partners. The poor design of the SWAP hampered the government’s performance and the SWAP was essentially implemented as a large multi-donor–funded project that still had to conform to donors’ systems on procurement, disbursement, and reporting while trying to manage weak internal capacity at all levels of government. The lack of autonomy in financial control to match the devolved accountability in delivering education services remained a challenge, and this hampered the strengthening of the relevant institutions. Governance was clearly an issue given the lack of attention to the quality dimension of the interventions. More could have been done to ensure a demand-driven construction rather than a supply-driven one and on the implementation of a teaching cadre. Nevertheless, the PCR noted that some of the challenges were caused by lack of, or delays in, donor harmonization that was out of the government’s control, despite the government’s commitment in ensuring smooth program implementation. Resolving the initial teething problems was critical to delivering program outputs. This validation considers the government’s performance satisfactory.

B. Performance of the Asian Development Bank

30. The PCR rated ADB’s performance satisfactory. The PCR noted that ADB was one of many development partners involved in the PEDP II. ADB played a constructive role in managing the PLU that was tasked to coordinate with the development partners and the government. The PCR (para. 31) noted that program implementation was rushed and that the development partners were still sorting out differences during project inception, and that the inability to harmonize the procedures of the government and the development partners caused significant delays, resulting in a 2-year extension of project implementation. Consultant recruitment in the first 2 years was slow and less efficient. The PCR did not comment on the performance of the other development partners and this validation does not have the basis to do so either. The PCR highlighted the 12 missions ADB fielded throughout the program duration, which included a thematic review mission and a mission from the Controller’s Department to support disbursements. Taking the lead over 11 other development partners, ADB provided significant support, assigning a staff member as full-time program manager with support from four staff members from the Bangladesh Resident Mission. This validation considers ADB performance satisfactory.

10

IV. OVERALL ASSESSMENT, LESSONS, AND RECOMMENDATIONS

A. Overall Assessment and Ratings

31. The PCR gave an overall rating of successful (Table 4). The innovative nature of the program resulted in teething difficulties but that is inherent in such an approach. The program was highly relevant to the primary education sector. While the project had significant delays, which led to a less than efficient use of resources, the outcome and output achievements have been effective in enabling the government to improve education quality and the results are likely sustainable as demonstrated by the approval of a subsequent PEDP III program. Concerns remain on the sustainability of the infrastructure without an operation and maintenance strategy, and devolution of the school management will require greater commitment from the government. This validation assesses the project successful overall.

Table 4: Overall Ratings Criteria PCR IED Review Reason for Disagreement and/or

Comments Relevance Highly relevant Highly relevant Effectiveness in achieving project outcome and outputs

Effective Effective

Efficiency in achieving outcome and outputs

Efficient Less than efficient Delays in project implementation resulted in extended project completion date (para. 24).

Preliminary assessment of sustainability

Most likely sustainable

Likely sustainable The PEDP III will continue the initiatives, but concerns on operations and maintenance and devolution remain (paras. 26–27).

Overall assessment Successful Successful Impact Not rated Moderate Refer to para. 28. Borrower and executing agency

Satisfactory Satisfactory

Performance of ADB Satisfactory Satisfactory Quality of PCR Less than

satisfactory There were challenges on how to rate the PEDP II given that the assessment of ADB support to the sector could not be quarantined from the overall sector achievements. Nevertheless, self-assessment ratings were not sufficiently substantiated and the analyses were often self-contradictory and incomplete (see para. 37).

ADB = Asian Development Bank, IED = Independent Evaluation Department, PCR = program completion report, PEDP = Primary Education Development Program, SWAP = sector-wide approach. Note: From May 2012, the Independent Evaluation Department views the PCR's rating terminology of "partly" or "less" as equivalent to "less than" and uses this terminology for its own rating categories to improve clarity. Source: ADB Independent Evaluation Department.

11

B. Lessons

32. This validation concurs in large part with the four lessons the PCR derived from the program, which are as follows: (i) assessment of the executing agency’s capacity is essential for SWAPs especially when a large number of development partners are involved; (ii) a systemic approach is needed to address the issues and problems of organizational complexity; (iii) constant coordination and reflection ensure that the government remains in the lead during implementation and that development partners get sufficient information to exercise oversight; and (iv) more flexibility is needed in the use of consultants, particularly when combining Bangladesh and international institutions to develop capacity in the DPE. The international institutions could continue supporting the DPE after program completion. 33. This validation adds, however, the importance of re-thinking the SWAP modality, that it is not treated simply as a modality for pooled financing for common objectives that are managed as a mega project. The education sector in Bangladesh is too complex to treat as a project; the SWAP modality needs to be flexible to allow for a common policy framework with several smaller investment initiatives each with its own outcomes and outputs linked to the broader sector outcomes that can be undertaken by a number of players including development partners, the government, sub-national government, and nongovernment entities that will spread the management and accountability of initiatives over a wider range of expertise, ensure inclusion, and allow for innovation. Development partners need to work more harmoniously with government systems and, in the face of weaknesses, have one common consensus on how to manage fiduciary issues. A more effective sequencing of initiatives would allow for better learning by doing.

C. Recommendations for Follow-Up

34. The PCR gave six program-related recommendations: (i) ensure that all relevant ministries, divisions, and commissions are sufficiently motivated to implement on time the agreements made during the design phase (the results-based financing in the PEDP III aims to provide such incentives); (ii) synthesize during the MTR process the lessons learned and incorporate them for the PEDP III—the back-to-back timing of the PEDP II and the PEDP III prevented the incorporation of identified lessons (other development partners and the government have also prepared evaluation reports); (iii) strengthen the SLIP and the upazila primary education plan during the PEDP III—the SLIP and the upazila primary education plan are key decentralized planning, financing, and monitoring tools for improving the quality of the primary education system; (iv) conduct a program performance evaluation review as many program interventions were carried on to the PEDP III, which may cause some challenges in attaining results; (v) conduct a space utilization study of rooms in schools and PTIs, to develop more flexible designs and increase the efficiency and effectiveness of infrastructure investments; and (vi) review teacher-training systems, as necessary. The in-service PTI system needs to be opened so that quality-assured providers can help improve quality, increase capacity, and generate competition. 35. The PCR’s recommendations are appropriate; however, the back-to-back timing of the PEDP II and the PDEP III could have been beneficial if the current program incorporates activities deemed necessary for preparing and designing the succeeding phase. Recommendations from ADB’s 2008 Sector Assistance Program Evaluation for Bangladesh’s education sector that have not yet been implemented should have been included. The Sector Assistance Program Evaluation gave the following recommendations: (i) ADB should work collectively with other development partners in the SWAP to strengthen the results framework

12

and harmonize the reporting systems, so that a single report can be prepared; (ii) ADB should work collectively with other development partners to encourage the Government of Bangladesh to lead the preparation of a comprehensive analysis for the entire education sector, linking different subsectors in an integrated manner, to identify issues (including the fragmented education management system, etc.) and to chart the future strategic direction of each subsector within the entire education sector; (iii) to build on past success, ADB should focus on issues related to education quality, equity, and institutional capacity in designing future projects or programs; and (iv) ADB should build on the experience of this SWAP for the design of future SWAP programs.

V. OTHER CONSIDERATIONS AND FOLLOW-UP

A. Monitoring and Evaluation Design, Implementation, and Utilization

36. The program monitoring and evaluation (M&E) system and other related data collection systems were established. Throughout program implementation, routine data were collected and the program’s M&E indicators were regularly monitored and conducted. Acknowledging the weakness of the DPE’s M&E capacity, results-based management as a management and reporting tool was introduced and adopted to improve the DPE’s efficiency.

B. Comments on Program Completion Report Quality

37. Overall, the PCR’s quality is rated less than satisfactory. The PCR attempted to follow the guidelines in its structure but failed to take a logical and comprehensive approach in reporting on the program. Given the number of evaluations done by ADB and other development partners, the PCR would have benefited from collating the various perspectives of these assessments as this was a complex and difficult program to assess.9 The PCR did not explain the impact of the MTR and Cyclone Sidr on the PEDP II outcomes and the DMF presented was difficult to read and evaluate. In many cases, the source of the monitoring data was not clear, and in some cases, not available. The DMF and the PCR text were not consistent, and the PCR gave assessments that contradicted its analyses. In other instances, assessments were based on inconclusive data. The PCR should have given a more substantive commentary on the PEDP III and how it had benefited from the lessons learned from the PEDP II.

C. Data Sources for Validation

38. Data sources for this validation were derived mainly from the PCR, the report and recommendation of the President, ADB’s own sector assessments, and the assessment of other development partners. IED conducted a short mission to Bangladesh to discuss the draft validation report with government representatives and the Bangladesh Resident Mission staff in June 2015. This helped in finalizing the validation report.

D. Recommendation for Independent Evaluation Department Follow-Up

39. Given that the PEDP III is ongoing, the midterm review of the PEDP III should be a useful juncture to carry out a program performance evaluation of the PEDP II to see the extent by which the PEDP III has benefited from the experience of implementing the SWAP approach, and how any new initiatives have progressed. 9 ADB. 2008. Sector Assistance Program Evaluation Report: Education Sector in Bangladesh: What Worked Well

and Why under the Sector-Wide Approach? Manila.

Appendix 13

INDEPENDENT EVALUATION DEPARTMENT’S ANALYSIS OF THE PRIMARY EDUCATION DEVELOPMENT PROGRAM OUTCOMES AND OUTPUTS

Table A1: Primary Education Development Program II: Impact, Outcome, and Output

Outcome Level Total Indicators Above Target On Target Below Target Total 12 7 1 4

Goal 6 4 1 1 Project purpose 6 3 3 Output/ Sub-Output Total

Completed/ Substantial

Partially/ Not Reached Uncertain

PEDP II 37 10 22 5 Output 1: Organizational development and capacity building

9 1 8

1.a 6 1 5 1.b 3 3

Output 2: Improved quality in schools and classrooms

12 4 8

2.a 1 1 2.b 6 3 3 2.c 1 1 2.d 1 1 2.e 1 1 2.f 2 2

Quality improvement through infrastructure development

10 3 4 3

3.a 7 2 4 3 3.b 3 1 2

Improved access for the poorest and socially excluded

6 2 2 2

4.a 6 2 2 2 PEDP = Primary Education Development Program. Sources: ADB. 2013. Completion Report: Second Primary Education Development Program in Bangladesh. Manila; ADB Independent Evaluation Department.

14 Appendix

Table A2: Primary Education Development Program II: Summary of Impactand Outcome Performance

Outcome Level Total Indicators Above Target On Target Below Target Goal 6 4 1 1 Project purpose 6 3 0 3

Source: ADB Independent Evaluation Department. Table A3: Primary Education Development Program II: Impact and Outcome Performance

Narrative Summary

Revised Performance Indicators and Targets

after MTR per PCR Accomplishments

per PCR Performance Overall Goal: Reduced poverty through universal primary education and sustainable socioeconomic development and equity in Bangladesh’s society as envisaged in the Millennium Development Goals

KPI-1 GER: 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). Readjusted to reflect more realistic figures after the baseline study.

Above target

KPI-2 NER: 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).

Above target Target reached

KPI-3: Student completion rate (Grade 5): To increase from 52% in 2005 to 55% in 2009 with gender parity

In 2010, the completion rate was 60.2% (above target). Correction made to target after baseline study finding.

Above target

KPI-4: Number of student stipends: 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). Government provided additional funds for this activity.

Above target

KPI-5: Transition rate from Grade 5 of primary schools to Grade 6 of secondary schools: To improve from 92% in 2005 to 96% in 2009 (with gender parity)

The last recorded figure, from 2008, was 97.5% (target reached). No gender disaggregated data are available.

Target reached

KPI-6: Expenditure on education as a percentage of GNP: Increase to 2.8% of GNP by 2009

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

Target not reached

Program Purpose: To provide quality primary education to all eligible children in

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

Target reached

Appendix 15

Bangladesh KPI-8: Pupil absenteeism from school (all grades): Reduced from 22% in 2005 to 18% in 2009 (with gender parity)

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

Target reached

Program Purpose: To provide quality primary education to all eligible children in Bangladesh

KPI-9: Student–teacher ratio: Reduced from 54 in 2005 to 48 by 2009

In 2010, the trend improved to 47 (on target). In 2011, the ratio became 53. Under the PEDP III, sufficient teachers remain a target.

Target reached

KPI-10: Repetition rates in all grades: 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%

Target not reached

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

Target not reached

KPI-12: Dropout rates by grade: 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%

Target not reached

GER = gross enrollment rate, GNP = gross national product, KPI = key performance indicator, MTR = midterm review, NER = net enrollment rate, PCR = program completion report. Sources: ADB. 2013. Completion Report: Second Primary Education Development Program in Bangladesh. Manila; ADB Independent Evaluation Department.

Table A4: Primary Education Development Program II: Achievements by Component



PEDP II 37 10 22 5 Output 1: Organizational development and capacity building 9 1 8

1.a 6 1 5 1.b 3 3

Output 2: Improved quality in schools and classrooms 12 4 8

2.a 1 1 2.b 6 3 3 2.c 1 1 2.d 1 1 2.e 1 1

16 Appendix



2.f 2 2 Quality improvement through infrastructure development

10 3 4 3

3.a 7 2 4 3 3.b 3 1 2

Improved access for the poorest and socially excluded

6 2 2 2

4.a 6 2 2 2 PEDP = Primary Education Development Program. Source: ADB. 2013. Completion Report: Second Primary Education Development Program in Bangladesh. Manila.

Table A5: Primary Education Development Program II: Program Completion Report Outputs


after MTR per PCR

PCR Achievements/Accomplishments

PCR DMF PCR Main Text 1. Quality of primary education improved through organizational development and capacity

building (RRP DMF) Organizational development and capacity building (PCR DMF) In the main text of the PCR, Output 1 is stated as “Quality Improvement through Organizational Development and Capacity Building.” The areas targeted were better governance, decentralized management using district and upazila (subdistrict) offices, human resources development, and institutional strengthening at the Directorate of Primary Education (DPE).

1.a Enhance the capacity of the Ministry of Primary and Mass Education (MOPME), the DPE, and affiliated institutions such as the National Academy for Primary Education (NAPE) and the National Curriculum and Textbook Board (NCTB) and field offices to ensure quality and equitable provision of primary education (PCR DMF). Summary of Indicators:

Sub-Output Total Completed Partially/Not Reached

1.a 6 1 5

a1. Human resources 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 resources development and management strategy and plan in February 2008, a comprehensive organizational development and capacity-building guide was prepared

p. 3, no. 13 In 2008, a comprehensive institutional analysis and organizational development plan 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

Partly achieved

Appendix 17


after MTR per PCR


PCR DMF PCR Main Text but is still not approved.

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.

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 the midterm review (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).

p. 4, no. 16 Decentralization and devolution of decision-making authority to districts have 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.

Completed

a3. Staff vacancies at all levels in primary teaching institutes (PTIs), district primary education offices, and 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).

p. 3, no. 13 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. p. 4, no. 15 Under the Second Primary Education Development Program (PEDP) II, chronic staff shortages in key institutions like the NAPE, the NCTB, and the PTIs have continued, albeit to a lesser degree. Similar staff issues hindered progress in adopting decentralization initiatives. A systems approach requires appropriate personnel at all levels. A gap at one level has significant repercussions

Target not reached

18 Appendix


after MTR per PCR


PCR DMF PCR Main Text 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 the PEDP II have yet to be transferred to the revenue budget.

a4. UPEP in place and used for planning: To try to achieve universal coverage of UPEP by the 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).

p. 4, no. 17 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 the PEDP II.

Target not reached

a5. Strategic Development Plan for the NAPE: Strategic Development Plan for the NAPE

The plan was completed in 2009 but not yet approved and thus no resource allocation made. (The issue on autonomy has not yet been approved by the Cabinet. This has stalled other activities.)

p. 4, no. 14 The program helped strengthen the NAPE and the NCTB, two key institutions that have been contributing to primary education. In 2004, the NAPE became autonomous; in 2008, a strategic plan was developed and approved. A human resources development plan with resourcing implications for the NAPE to carry out its function is still being prepared. This will require government approval and ongoing financial support. The practice of staffing the NAPE through deputation undermines commitment and accountability; this requires resolution. Despite achieving these outputs, debate on the organization’s tangible role in and contribution to primary education continues. The NCTB still suffers from lack of high-quality, relevant staff.

Target not reached

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

Not completed. Structural alignment of these two entities continues to present difficulties.

Target not reached

Appendix 19


after MTR per PCR


PCR DMF PCR Main Text 1.b Enhance the capacity of the education management system (EMIS) to support monitoring

and evaluation (M&E) functions (PCR DMF) Summary of Indicators:


1.b 3 3

b1. Time from collection to dissemination of data, with KPI/primary school quality–level standards (PSQL) reporting in December each year: KPI/PSQL reports by December every year

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

p. 4, no. 13 To help develop the DPE’s capacity, organizational units such as the Finance Division, the MIS Cell, and the Student Assessment Cell were strengthened.

Target not reached

b2. MIS Cell at the DPE strengthened: Cell has sanction posts filled, has received appropriate professional development, and is using suitable equipment.

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

Target not reached

b3. Establishment of upazila database for annual PSQL processing: Upazila database in operation by December 2008

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

Partly reached

2. Improved quality in schools and classrooms (RRP and PCR DMF) The PCR main text states that to improve quality in schools and classrooms, • bottom-up interventions directed at schools are used to address

o classroom teaching practices and monitoring, and o development of management, planning, and budgeting capacity.

• quality teachers are recruited, trained, and supplied through a revised recruitment and deployment process based on merit and demand.

2.a Enhance and improve the field-level capacity of school organizations and management at the local level (PCR DMF) Summary of Indicators


2.a 1 1

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

p. 4, no. 17 To achieve this output, the project used bottom-up interventions directed at schools that addressed

Target not reached

20 Appendix


after MTR per PCR


PCR DMF PCR Main Text

60,965 targeted government primary schools (GPS), registered nongovernment primary schools (RNGPS), and community schools) to 16,182 in 2010 (27%) as funding was reduced (target not reached).

classroom-teaching practices and monitoring, and development of management, planning, and budgeting capacity. The PSQL indicators were used to help the DPE and schools improve local capacity in quality improvement and accountability. SLIPs were introduced to empower the school management committees (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 PEDP III, the follow-on to the PEDP II.

2.b Improve the physical and professional capacity of PTIs, upazila resource centers (URCs), and school subclusters to deliver quality primary teacher training (PCR DMF).


2.b 6 3 3

b1. Revision of Certificate in Education (C-in-Ed) curriculum: Completed by December 2008, implemented by July 2009, annual review

Not achieved. Implementation of new curriculum delayed to July 2012. C-in-Ed modestly revised. Diploma in Education (Dip-in-Ed) being introduced under the PEDP III.

p. 5, no. 18 Revision of the pre-service teacher education program (C-in-Ed) to introduce contemporary teaching and learning was delayed because of differences in opinion between local experts and international advisors. A compressed version of C-in-Ed was used for pre-service training, which may have compromised improvement of student learning outcomes. At the same time, a Dip-in-Ed was being designed to replace the C-in-Ed. The development of the diploma is part of the PEDP III.

Target not reached

Appendix 21


after MTR per PCR


PCR DMF PCR Main Text 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.

Target not reached

Teachers 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.

Above target

b2. Recruitment of new teachers: 35,000 new teachers to be appointed

45,000 now appointed (above target). (The target was increased after the MTR.)

p. 4, no.18 Some 45,000 new teachers (60% of them women) were recruited and given pre-service (induction) training. Owing to a lack of facilities, not all teachers could participate in the long-term pre-service training; double shifts were used for the long-term training.

Above target

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.

p. 4, no. 18 Some 45,000 new teachers (60% of them women) were recruited and given pre-service (induction) training. Not all teachers could participate in the long-term pre-service training because of lack of facilities; double shifts were used for the long-term training.

Target not reached

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 received more training of all types. Over 90% of teachers attended subcluster training in 2010 (above target) (607,700 teachers received subject-based training). The initial performance indicators were revised and

Teacher quality was also strengthened through support provided to the URCs. The URCs were anticipated to deliver all in-service subject-based training. Textbooks and teacher-learning materials (TLM) were provided as 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.

Above target

22 Appendix


after MTR per PCR


PCR DMF PCR Main Text consolidated as shown in b4. Need to move away from input and supply-side models of in-service training.

2.c Improve the quality of head teachers. (PCR DMF)

Sub-Output Total Completed Partially 2.c 1 1

c1. Head teachers receive initial training, including training on 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.

Training on school management and academic supervision increased in 2010 and is on target (target achieved).

p. 5, no. 19 All new head teachers plus a significant number of existing ones received training on school quality improvement, teacher performance monitoring, and planning of in-service (cluster and subject-based) training.

Target achieved

2.d Enhance the quality of teachers and of teaching in primary schools through new job descriptions and improved career development plans (PCR DMF)

Sub-Output Total Completed Partially

2.d 1 1

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. Part of PEDP III.

p. 3, no. 13 In 2008, a comprehensive institutional analysis and organizational development plan were developed and approved.

2.e Enhance the provision and quality of learning resources (PCR DMF)

Sub-Output Total Completed Partially/Not Achieved

2.e 1 1

e1. Teacher guides for all subjects available when needed: PSQL 18: Teacher guides for III–V subjects available by June 2008 and I–II by December 2008

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

p. 5, no. 19 All new head teachers plus a significant number of those existing received training on school quality improvement, teacher performance monitoring, and planning of in-

Not achieved

Appendix 23


after MTR per PCR


PCR DMF PCR Main Text 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.

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.

2.f Promote and facilitate greater community participation and support for education improvement in primary schools, through SMCs, etc. (PCR DMF)

Sub-Output Total Completed Partially/Not Achieved

2.f 2 2

f1. Training of SMCs: PSQL 20: three 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.

p. 4, no. 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 PEDP III, the follow-on to PEDP II.

Target not achieved

24 Appendix


after MTR per PCR


PCR DMF PCR Main Text Innovative Schemes Fund used to promote community awareness of the value of education and child health.

The innovations fund activity was implemented but not monitored.

Partially achieved

New intervention by the DPE was the Grade 5 exam, leading to improvement in school monitoring, which included identifying nonperforming schools. The 2006 and 2008 national assessments help focus on outcomes. Part of the PEDP II. Two interventions mentioned at PCR that were tagged as not being part of the program design but were implemented are seemingly part of the RRP DMF. These interventions are the 2009 Grade 5 terminal examination and the 2006 and 2008 national student assessments (PCR p. 5, para. 20). The RRP DMF, however, has the following as indicators: • Students’ competency-

based learning achievements to increase by 50% in 2006 and 75% in 2009 compared with the assessed results in 2002

• Proportion of class V students entering primary scholarship examination to increase to 50% by 2009 from 20% in 2001 and the proportion of students attaining the pass level to increase to 20% in 2009 from 5% in 2001

3. Quality improvement through infrastructure development (RRP and PCR DMF) The PCR main text objective was to provide a safe and motivating learning environment to encourage all children, including disadvantaged children, to participate in primary education through

• 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 district.

Appendix 25


after MTR per PCR


PCR DMF PCR Main Text 3.a Provide improved levels of infrastructure, facilities, and equipment to encourage and facilitate improved and equitable access for all children, leading to improved student achievement (RRP and PCR DMF)

Sub-Output Total Completed/ Substantial

Partially/ Not Achieved

Uncertain

3.a 7 2 4 1

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. Revised target after MTR.

p. 5, no. 21 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. Renovations and extensions were funded for the NAPE, PTIs, and other education offices. To support teachers’ professional development, 398 new URCs were established in underserved areas and 93 were 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.

Substantially achieved

a2. Number of students per classroom: PSQL 3: Class size reduced to 40 by 2009

65.3% of all GPS and RNGPS schools met the target in 2010. Target revised after midterm.

Partial/Not achieved

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 the Local Government Engineering Department (LGED). Target revised after midterm.

Not achieved

26 Appendix


after MTR per PCR


PCR DMF PCR Main Text 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. Target revised after midterm.

Not achieved

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 wells and 77% have a portable water supply, the majority of them with tube wells.

Above target

a6. GPS with separate toilets for girls and boys: PSQL 8: GPS with separate toilet facilities increase to 60% in 2009

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

Not achieved

Improved classroom furniture provided in 19,500 Grades 1 and 2 classrooms for younger children, by 2009

By November 2011, 505,136 benches, 74,644 chairs, and 53,623 tables were supplied to schools. Target revised after midterm.

Uncertain

Appendix 27

3.b Provide improved infrastructure and facilities for PTIs and URCs (PCR DMF)

Sub-Output Total Completed Uncertain 3.b 3 1 2

Renovate, upgrade, and extend all PTIs by 2005 PTI expansion and renovation program completed by the end of year 3 of the PEDP II

By November 2011, 53 PTIs were extended and/or renovated (target achieved). Implemented but not monitored.

p. 5, no. 21 Renovations and extensions were funded for the NAPE, PTIs, and other education offices. To support teachers’ professional development, 398 new URCs were established in underserved areas and 93 were renovated.

Target achieved

Complete the URC building program by 2005

URC centers are in most upazilas but not all. Implemented but not monitored.

Uncertain

URC construction and equipping program completed by the end of year 3 of the PEDP II

By November 2011, 398 new upazila resource centers were constructed. Was implemented but not monitored.

Uncertain

4. Improved access to quality schooling (RRP DMF) Improved access for the poorest and socially excluded (PCR DMF) Greater access to quality education for minority groups and special needs children (PCR TEXT) The component in the PCR main text had the following targets:

• Promote inclusive education: Improve DPE capacity • Poverty through the stipend program: to increase attendance and completion rates of the

poorest • Geographic locations as remote and tribal areas • Gender • Special needs

4.a Enhance and institutionalize the DPE’s capacity in the districts to meet the needs of the poor children and children with special needs (PCR DMF)

Sub-Output Total Completed/ Substantial

Partially/ Not Achieved

Uncertain

4.a 6 2 2 2

a1. Stipends impact on completion: Proportion of completion rate (Grade 5) of children awarded stipends

The indicator needs to be clarified or reformulated. No study is yet available.

p. 6, no. 25 To increase attendance and completion rates, the PEDP I stipend support program was continued and supported by the PEDP II. The program, which targeted 40% of the poorest children, transferred money

Uncertain

28 Appendix

directly to the bank accounts of parents or authorized guardians. The support was conditional upon children attaining 80% recorded attendance and a 40% mark on the school exam. At the end of the program, 7,869,426 children had benefited from stipend support.

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.

p. 6, no. 24 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.

Not yet achieved

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. Revised target and scope after MTR.

Uncertain

a4. Support staff (inclusive education) appointed and trained for districts: 64 (districts) plus 7 (ADB headquarters) technical support personnel appointed, trained, and in place by 2008

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

p. 6, no. 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 fielded to implement activities.

Partially achieved

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.

Target achieved

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

Largely achieved: 270 staff attended training-of-trainer courses in inclusive education. They

Largely achieved

Appendix 29

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

included assistant district primary education officers, PTI instructors, UEOs, URC instructors, and Assistant UEOs. Training of other staff is ongoing. All 61,000 head teachers in 4 type

ADB = Asian Development Bank, DMF = design and monitoring framework, PCR = program completion report, RRP = report and recommendation of the President. Sources: ADB. 2013. Completion Report: Second Primary Education Development Program in Bangladesh. Manila; ADB Independent Evaluation Department.

20151223 pvr 391 l2015 ban secondary primary education … · 2015-12-24 · secondary education,...

Documents