african development fund project completion report

SCCD: G. G.

AFRICAN DEVELOPMENT FUND

PROJECT COMPLETION REPORT

REPUBLIC OF NAMIBIA

BASIC TEACHER EDUCATION PROJECT

SOCIAL DEVELOPMENT DEPARTMENT ONSDNORTH REGION NOVEMBER 2004

TABLE OF CONTENTSPage

CURRENCY EQUIVALENTS, WEIGHTS AND MEASURES, ABBREVIATIONS (i-xviii)BASIC PROJECT DATA, MPDE MATRIX, EXECUTIVE SUMMARY

1. INTRODUCTION 1

2. PROJECT OBJECTIVES AND FORMULATION 1

2.1 Project Objectives 12.2 Project Description and Formulation 12.3 Project Origin 22.4 Project Preparation and Appraisal 32.5 Negotiations and Approval 3

3. PROJECT EXECUTION 3

3.1 Effectiveness and Start-up 33.2 Modifications 43.3 Implementation Schedule 43.4 Reporting 53.5 Procurement 53.6 Financial Sources and Disbursement 5

4. PROJECT PERFORMANCE 7

4.1 Overall Assessment 74.2 Operating Results 74.3 Institutional Performance 84.4 Management and Organisational Effectiveness 94.5 Staff Recruitment, Training and Development 104.6 Performance of Consultants, Contractors, Suppliers

and Borrower 104.7 Conditions and Covenants 12

5. SOCIAL AND ENVIRONMENTAL IMPACT OF THE PROJECT 13

5.1 Social Impact 135.2 Environmental Impact 13

6. PROJECT SUSTAINABILITY 14

7. PERFORMANCE OF THE BANK AND THE BORROWER 15

7.1 Project Objectives and Justification 157.2 Project Implementation and Operating Outcomes 15

8. OVERALL PERFORMANCE AND RATING 15

9. CONCLUSIONS, LESSONS LEARNED AND RECOMMENDATIONS 16

9.1 Conclusions 169.2 Lessons Learned 169.3 Recommendations 18

LIST OF TABLES

3.1 Comparative Project Implementation Schedule (Estimated and Actual)3.2 Planned Financing by Source3.3 Actual Financing by Source3.4 Planned Financing by Category and Source3.5 Actual Financing by Category and Source

LIST OF ANNEXES

I. Map of Namibia and Location of Project SitesII. Planned and Actual Expenditures by Year, Source and Category of ExpenditureIII. Performance Evaluation and RatingIV. Recommendations and Follow-up ActionsV. List of Documents ConsultedVI. Borrower’s and Executing Agency’s Comments on the Bank’s PCR

This report was prepared by Mr. Felix N. Bongjoh, Chief Education Analyst, ONSD 1 and two consultants(one Architect and one Education Specialist) following their mission to Namibia from 23 October to 08November, 2004. For further information on the report, please contact Mr. André Komenan, DivisionManager, ONSD 1 (Ext 2150) or Ms. Alice Hamer, Director, ONSD (Ext.2046).

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CURRENCY EQUIVALENTS

Currency Unit : NAMIBIAN DOLLAR (NAD)*/1 UA : NAD 4.19796 (1st Quarter, 1993)1 UA : NAD 9.47499 (October, 2004)1 USD : NAD 5.9595 (October, 2004)**/

*/ The currency unit at appraisal was South African Rand

**/ Commercial rate at PCR mission

WEIGHTS AND MEASURES

Metric System

ABBREVIATIONS & ACRONYMS

ADB African Development BankADF African Development FundAIDS Acquired Immune Deficiency SyndromeBADEA Arab Bank for Economic Development in AfricaBTEC Basic Teacher Education CollegeCOSDEC Community Skills Development CenterCPE Certificate of Primary EducationDABE Directorate of Adult Basic EducationDANIDA Danish International Development AgencyDFID Department for International Development (U.K.)DPD Directorate for Planning and DevelopmentECD Early Childhood DevelopmentEMIS Education management Information SystemESSP Education Sector Strategic PlanEU European UnionFE Foreign ExchangeGDP Gross Domestic ProductGER Gross Enrolment RateGNP Gross National ProductGRN Government of the Republic of NamibiaGTZ German Agency of Technical Co-operationHA Hectare (10,000 m2)HIPC Heavily Indebted Poor CountriesHIV/AIDS Human Immunodeficiency Virus/Acquired Immune Deficiency SyndromeHPI-N Human Poverty Index - NamibiaICB International Competitive BiddingIEC Information, Education and CommunicationIIEP International Institute for Educational PlanningIMR Infant Mortality RateKAPB Knowledge, Attitude, Practice and BehaviourLC Local CostsLFPR Labor Force Participation RateLTI Level of Training OneLTII Level of Training TwoLTIII Level of Training ThreeMASTEP Mathematics and Science Teachers Extension ProgrammeMBESC Ministry of Basic Education, Sport and CultureMHETEC Ministry of Higher Education, Training and Employment CreationMOEC Ministry of Education and CultureMOF Ministry of Finance

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MOL Ministry of LaborMPDE Method for Project Design and EvaluationMTEF Medium-Term Economic FrameworkMWACW Ministry for Women’s Affairs and Child WelfareMWTC Ministry of Works, Transport and CommunicationsNACEC National Council of Employment CreationNACOP National AIDS Coordination ProgrammeNANGOF Namibia Non-Governmental Organizations ForumNCB National Competitive BiddingNCIET National Center for Innovation, Entrepreneurship and TechnologyNER Net Enrolment RatioNFC National Foundations CertificateNGO Non-Governmental OrganisationNIED National Institute for Educational DevelopmentNPC National Planning CommissionNS National ShoppingNTF Nigeria Trust FundNTO National Training OrganisationNQA National Qualifications AuthorityOPEC Organisation for Petroleum Exporting CountriesPCECT Presidential Commission on Education, Culture and TrainingPCR Project Completion ReportPID Project Implementation DocumentPMU Project Management UnitQPPR Quarterly Project Progress ReportR&D Research and DevelopmentRFP Request for proposalsSIDA Swedish International Development AgencySL ShortlistS&T Science and TechnologySWAp Sector Wide ApproachTA Technical AssistanceTAC Trade Advisory CommitteesTVE Technical and Vocational EducationUA Unit(s) of AccountUN United NationsUNAM University of NamibiaUNDP United Nations Development ProgrammeUNESCO United Nations Educational, Scientific and Cultural OrganisationUNICEF United Nations Children’s FundUSAID United States Agency for International DevelopmentUSD United States DollarsVET Vocational Education and TrainingVTC Vocational Training CentreWB World Bank

FISCAL YEAR1 April – 31 March

ACADEMIC YEAR1 January – 31 December

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REPUBLIC OF NAMIBIABASIC TEACHER EDUCATION PROJECT

PROJECT COMPLETION REPORT

BASIC PROJECT DATA

1. Loan Numbers : F/NAM/EDU/93/22. Borrower : The Government of the Republic of Namibia3. Beneficiary : Ministry of Basic Education, Sport and Culture4. Executing Agency : MBESC/PIU

A. LOAN

1. Loan Amount : UA 9.211 million2. Service Charge : 0.75 % on principal amount of the Loan disbursed and

outstanding from time to time.3. Interest Rate : 1 % from the 11th to the 20th year and 3 % thereafter4. Repayment Period : 40 Years5. Grace Period : 10 Years6. Loan Negotiation Date : June, 19937. Loan Approval Date : 23 June, 19938. Loan Signature Date : 09 July, 19939. Date of Entry into Force : 27 May, 1994

B. PROJECT DATA

Appraisal Estimate Actual Cost at PCR

FE LC Total FE LC Total

1. Total Cost (UA mill.) 6.91 4.14 11.05 7.10 5.61 12.71

2. Financing Plan (UA mill.) Appraisal Estimate Actual Financing at PCR

FE LC Total FE LC Total

ADF 6.91 2.30 9.21 6.55 2.47 9.02Government 0.00 1.84 1.84 0.55 3.14 3.70Total 6.91 4.14 11.05 7.10 5.61 12.71

3. Effective Date of First Disbursement : 27 May, 19944. Actual Date of First Disbursement : 27 May, 19945. Effective Date of Last Disbursement : 31 December, 19976. Revised Date for Final Disbursement : 1) 30 June, 2002

2) 31 December, 20027. Commencement of Project Implementation Activities : May, 19948. Date of Completion of Project Implementation Activities : December, 2002

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C. PERFORMANCE INDICATORS

1. Cost Under-run (Loan only) : UA 0.19 million (2.1 %)

2. Time Over-run:- Slippage of Effectiveness : One year- Slippage of Completion Date : 5 years (167 %)- Slippage of Last Disbursement : 5 years (167 %)- Number of Extensions to Last Disbursement : 2

3. Project Implementation Status : Completed4. Verifiable Indicators:

(A) Professional Services : 100% complete(B) Civil Works : 100% complete(C) Furniture : 100% complete(D) Equipment : 100% complete(E) Operating Costs : 100% Complete

5. Institutional Performance (Unsatisfactory/Fair/Satisfactory):- The Bank Group: Fair- The Government: Fair- Contractors: Fair- Suppliers: Satisfactory- Consultants: Unsatisfactory

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D. MISSIONSNos ofPersons Composition Pers/Days Dates

Appraisal*/ 2 EE/AR 28 Jan/Feb, 1993Techn. Superv. 2 M/AR 16 15/01-23/01-95Techn. Superv. 2 EE/AR 20 04/07-14/07-96Techn. Superv. 2 EE/AR 28 29/06-12/07-97Techn. Superv. 2 EE/AR 28 25/01-08/02-98Techn. Superv. 2 EE/AR 28 20/01-04/02-99Techn. Superv. 2 EE/AR 26 22/09-05/10-99Techn. Superv. 2 EE/AR 28 13/02-29/02-00Audit 2 IA (2) 22 05/02-16/02-01Techn. Superv. 1 EE 11 26/02-09/03-01Financial Superv. 1 DD 7 01/04-08/04-01Techn. Superv. 1 EE 16 13/09-29/09-02Techn. Superv. 1 EE 7 10/04-17/04-03PCR***/ 4 M/EE/AR(C)/EE(C) 52 24/10-07/11-04

*/ Project appraisal immediately followed its preparation.

**/ Education Expert (EE); Architect (AR); Consultant (C); Country Programmes Department (CP); Management (M); Disbursement Department (DD);

Internal Auditors (IA)

***/ Combined with PCR of the Human Resources Development Project

E. DISBURSEMENT (UA Million)

Appraisal PercentageYear Estimate Actual Disbursed

1993 0.751994 6.39 0.96 10.41995 1.70 1.67 18.11996 0.37 1.16 12.61997 1.02 11.11998 1.72 18.71999 1.58 17.22000 0.47 5.12001 0.06 0.62002 0.39 4.2- Total Disbursement 9.21 9.02 97.9- Undisbursed Balance 0.19 2.1- Amount Cancelled 0.19 2.1The actual disbursement figures are rounded from spreadsheet and may not “add up” to the last figure

viF. CONTRACTORS01 Nature of Contract : Civil works at Katima Mulilo (Caprivi College of

Education) and Library at OngwedivaCollege of Education

Date of Tender : 16 September, 1993Date of Contract Award : February, 1994Contract Amount : NAD 27,059,255.82 (NAD 14,129,157.09 original

contract plus NAD 12,930,098.73 extension)ADB’s Share : 86.3 %Name of Company and Address : China Jiangsu International, NamibiaNationality : ChineseHeadquarters : Zhongyang, NanjingApproved Mode of Procurement: ICBActual Mode of Procurement : ICBReasons for Change (if any) : N/ADate of Commencement : March 1994 (original contract)Programmed Completion Date : March 1996 (original contract)Actual Completion Date : 31 October, 1998 (incl. additional works)Actual Cost of Contract : NAD 27,059,255.82

02 Nature of Contract : Civil works at Rundu College of EducationDate of Tender : 16 September, 1993Date of Contract Award : February, 1994Contract Amount : NAD 23,971,531.84 (NAD 13,132,589.91 original

contract plus NAD 10,838,941.93 extension)ADB’s Share : 86.3 %Name of Company and Address : China Jiangsu International, NamibiaNationality : ChineseHeadquarters : Zhongyang, NanjingApproved Mode of Procurement: ICBActual Mode of Procurement : ICBReasons for Change (if any) : N/ADate of Commencement : March, 1994 (original contract)Programmed Completion Date : March, 1996 (original contract)Actual Completion Date : 31 October, 1998 (incl. additional works)Actual Cost of Contract : NAD 23,971,531.84

03 Nature of Contract : Civil works at Ongwediva College of EducationDate of Tender : 16 January, 2001Date of Contract Award : 04 August, 2001Contract Amount : NAD 2,986,534.88ADB’s Share : 86.3 %Name of Company and Address : Global Construction (Pty) Ltd

P.O. Box 1227, OndangwaNationality : NamibianHeadquarters : OndangwaApproved Mode of Procurement: NCBActual Mode of Procurement : NCB

Date of Commencement : August, 2001Programmed Completion Date : August, 2002Actual Completion Date : August ,2002Actual Cost of Contract : NAD 2,986,534.88

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Several local contracts, using NCB, were entered into concerning the building works at 14 rural primaryschools. At PCR it was not possible to obtain the precise details about tendering dates, dates of contractawards, commencement dates, completion dates and so on. The following tables give a summary of theessential data.

04 Rural Schools (Rundu)

Nature of Contract Name of Contractor Contract AmountConstruction of 1x two bedroom and 1x three bedroom

house at Nyangana

China Jiangsu NAD 412,491.96

Construction of 1x two bedroom and 1x three bedroom

house at Mpungu

Oume Construction NAD 431,003.30


house at Nkurenkuru

Walvis Bay Construction NAD 399,825.98


house at Bunya

West Africa Construction NAd 399,609.12


house at Rucara



house at Kayengona


Construction of Teachers Resource Centre at Shinungwe S. Marais Builders NAD 270,262.41

05 Rural Schools (Caprivi)

Nature of Contract Name of Contractor Contract AmountConstruction of 1x three bedroom house at Divindu S. Marais Builders NAD 220,256.64

Construction of 1x three bedroom house at Andara S. Marais Builders NAD 212,847.94

Construction of Teachers Resource Centre at Linyanti Du Preez Builders NAD 267,694.85

Construction of 1x three bedroom house and 1x office

block at Sibbinda

Schrader Construction NAD 410,939.92


block at Cincimani

Du Preez Builders NAD 400,245.52


block at Bukalo



block at Ngoma


G. SUPPLIERS

01 Nature of Contract : Supply of furniture for Caprivi and RunduColleges of Education

Date of Tender : n/aDate of Contract Award : 21 February, 1994Contract Amount : NAD 456,998.25ADB’s Share : 48.1 %Name of Company and Address : MKU Enterprises (Pty) Ltd

P.O. Box 198, WindhoekNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD456,998.25

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Contract Amount : NAD 263,332.12ADB’s Share : 48.1 %Name of Company and Address : Katutura Import ExportNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 263,332.12


Contract Amount : NAD 239,340.00ADB’s Share : 48.1 %Name of Company and Address : Hugo’s InteriorsNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 239,340.00


Contract Amount : NAD 927,433.72ADB’s Share : 48.1 %Name of Company and Address : Barotti NamibiaNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 927,433.72


Contract Amount : NAD 38,338.17ADB’s Share : 48.1 %Name of Company and Address : Spectrum Furniture (Pty) Ltd

P.O. Box 87, WindhoekNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 38,338.17

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Contract Amount : NAD 49,830.00ADB’s Share : 48.1 %Name of Company and Address : Executive Office Collections (Pty) Ltd



Contract Amount : NAD 621,033.76ADB’s Share : 48.1 %Name of Company and Address : Office World (Pty) Ltd



Contract Amount : NAD 20,064.00ADB’s Share : 48.1 %Name of Company and Address : Schoemans Office Systems (Pty) Ltd


09 Nature of Contract : Supply of equipment for Caprivi and RunduColleges of Education

Contract Amount : NAD 1,101,803.22ADB’s Share : 100 %Name of Company and Address : Katutura Import ExportNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 1,101,803.22

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Contract Amount : NAD 146,021.21ADB’s Share : 100 %Name of Company and Address : General WholesalersNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 146,021.21


Contract Amount : NAD 89,901.44ADB’s Share : 100 %Name of Company and Address : Bernina, WindhoekNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 89,901.44


Contract Amount : NAD 425,879.75ADB’s Share : 100 %Name of Company and Address : PC Centre (Ltd)Nationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 425,879.75


Contract Amount : NAD 331,857.00ADB’s Share : 100 %Name of Company and Address : Namibian Computer ServicesNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 331,857.00

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14 Nature of Contract : Supply of lab equipment for Caprivi and RunduColleges of Education

Contract Amount : NAD 283,330.58ADB’s Share : 100 %Name of Company and Address : Bio ScientificNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 283,330.58


Contract Amount : NAD 68,999.40ADB’s Share : 100 %Name of Company and Address : Pupkewitz & SonsNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 68,999.40

16 Nature of Contract : Supply of buses for Caprivi and RunduColleges of Education

Contract Amount : NAD 754,289.16ADB’s Share : 100 %Name of Company and Address : Ritter’s (Pty) LtdNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 754,289.16

17 Nature of Contract : Supply of buses Caprivi and RunduColleges of Education

Contract Amount : NAD 542,745.00ADB’s Share : 100 %Name of Company and Address : Erf NamibiaNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 542,745.00

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Contract Amount : NAD 2,334,899.94ADB’s Share : 100 %Name of Company and Address : Fedu FoundationNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 2,334,899.94


Contract Amount : NAD 166,843.00ADB’s Share : 100 %Name of Company and Address : PC Centre (Ltd)Nationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 166,843.00


Contract Amount : NAD 67,758.00ADB’s Share : 100 %Name of Company and Address : EdumedsNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 67,758.00

21 Nature of Contract : Supply of library books for OngwedivaColleges of Education

Contract Amount : NAD 823,668.93ADB’s Share : 100 %Name of Company and Address : EdumedsNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: NCBActual Mode of Procurement : NCBActual Cost of Contract : NAD 823,668.93

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H. CONSULTANTS

01 Nature of Contract : Professional services (architects)Date of Tender : n/a (Government appointed)Date of Contract Award : 1993Contract Amount : n/a (percentage-based fees)ADB’s Share : 0 %Name of Company and Address : Bartsch Architects

P.O. Box 2305, Windhoek, NamibiaNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: Government procedureDate of Commencement : 1993Programmed Completion Date : As the construction programmeActual Completion Date : 2002Actual Cost of Contract : n/a (percentage-based fees)

02 Nature of Contract : Professional services (quantity surveyors)Date of Tender : n/a (Government appointed)Date of Contract Award : 1993Contract Amount : n/a (percentage-based fees)ADB’s Share : 0 %Name of Company and Address : Jordaan Oosthuysen Quantity Surveyors

P.O. Box 8497, WindhoekNationality : NamibianHeadquarters : WindhoekApproved Mode of Procurement: Government procedureDate of Commencement : 1993Programmed Completion Date : As the construction programmeActual Completion Date : 2002Actual Cost of Contract : n/a (percentage-based fees)

03 Nature of Contract : Professional services (mechanical & electrical engineers)Date of Tender : n/a (Government appointed)Date of Contract Award : 1993Contract Amount : n/a (percentage- based fees)ADB’s Share : 0 %Name of Company and Address : Africon Namibia


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04 Nature of Contract : Professional Services (structural engineers)Date of Tender : n/a (Government appointed)Date of Contract Award : 1993Contract Amount : n/a percentage-based fees)ADB’s Share : 0 %Name of Company and Address : Weder & Associates


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PROJECT MATRIX

Hierarchy of Objectives Objectively Verifiable Indicators Means of Verification Important Assumptions/Risks

Development Objective

Improved quality of basic education Increased functional literacy from present 40% to 80% by the year2005

Statistical data fromthe Central StatisticsOffice

Project Objectives

Improved quality and increased capacity ofbasic teacher education

1.1 Pass rate of trainee teachers at Katima Mulilo and RunduColleges increased to 95% by year 1998

1.2 Annual output of trained teachers from each of the two collegesto reach 100 by year 1998

- MEC statistical data

- MEC statistical data

1.1 Sufficient numbers of primary schoolsbuilt to absorb increased capacity of teaching.

1.2 Teachers’ salaries and housing conditionsto be made sufficiently attractive for teachersto stay in their profession.

1.3 Proper management systems establishedand maintained.

1.4 Increased recurrent costs to be met by theGovernment

Outputs

Two new teacher education colleges built,equipped and furnished: at Katima Muliloand Rundu

1.1 Construction of the two colleges, each with an initial capacity of300 students, completed by 01 February 1995

1.2 The two colleges furnished and equipped by 01 March 1995

- QPPRs

- Periodic Banksupervision

- PCR

1.1 Sufficient college staff available (on-goingdonor supported programme to continue untilsufficient local capacity is attained).

1.2 Sufficient students who meet the intakerequirements are available.

1.3 Curriculum and syllabuses developed andmaintained.

1.4 Recurrent costs met by Government.

Activities

1. Appointment of Project manager by July,1993

2. Production of tender documents for civilworks, furniture and equipment:

Civil Works: May 1993

Inputs

- ADF Loan of FUA 10.0 million (UA 9.211 million)available by June 1993

- Government counterpart funds equivalent to FUA 2.0million (UA 1.84 million)

- Professional services up to tender documents financed bythe Government

1.1 Activities implemented in accordance toimplementation schedule.

1.2 No significant increase in inflation rateduring implementation.

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Furniture: January 1994

Equipment: January, 1994

3. Tendering, evaluation of tenders, award ofcontracts:

Civil Works: October 1993

Furniture: June 1994

Equipment: June 1994

4. Construction of the two colleges,completed by 01/02/95

5. Procurement of furniture and equipment,completed by 01/02/95

6. Supervision of construction works fromNov 1993 to Feb 1995

7. installation of furniture and equipmentcompleted by 01/03/95

8. guarantee periods: Feb 1995 – Feb 1996

- Project manager, secretarial services, MWTC technicalservices provided

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EXECUTIVE SUMMARY

1. The BTE project, the first financed by the Bank Group in the education sector, wasapproved in June1993. The ultimate objective of the project was an improved basic educationsystem. The immediate objective was an upgraded pre-service basic teacher educationthrough the establishment of two new teacher education colleges with an initial intakecapacity of 300 students each and respectively turning out 100 graduates a year. The twoinstitutions are three-year boarding teacher training colleges each with an initial capacity of300 students, which over the years has risen to 344 (180 females and 144 males) in Runduand to 376 (188 females and 188 males) in Katima Mulilo. The two physical facilities wereeach initially improved through additional works, including the installation of water tanksand the upgrading of certain site works and substantial infrastructure to enable teachers fromthe college to carry out practice teaching exercises within a congenial environment. With yeta substantial loan balance following the above-mentioned additions to the initial scope of theproject scope, further investments, including the establishment of a library, were made at theOngwediva College of Education.

2. The initial scope of the BTE project was completed by 1996 when it becameoperational. In its extended scope, the project was virtually completed by 2002 when the lastdisbursement was made and the project management team dissolved. Based on theGovernment’s expectation to make use of the project’s outstanding loan balance, it was notuntil this year (2004) that the balance was finally cancelled, following two successive yearsof no disbursement. In the absence of staff involved in the implementation of the project, thePCR mission undertaken to assess the completion status of the project had the tremendoustask of reconstituting data obtained in bits and pieces in the field.

3. The increased capacity of qualified teachers as evidenced by the large number ofgraduates from the colleges of education has necessarily improved the basic educationsystem, which at appraisal showed a trend of high repetition rates, many unmotivated drop-outs and poor pass rates at terminal examinations. The situation has since improved. TheOngwediva College of Education (OCE) is by the far the largest of the 3 colleges with a totalof 903 students (529 females and 374 males). The current status of operation of OCE is notquite satisfactory on account of an inadequate curriculum which needs to focus on cognitiveskills and because of a lack of resources, including textbooks, teaching aids, science kits,science laboratories and demonstration schools with teachers sufficiently competent andexperienced.

4. With regard to the Rundu and Caprivi Colleges of Education, which were part of theinitial project scope, their operational status is characterized by similar mixed results. AtRundu a dysfunctional library with inadequate ventilation makes it difficult for students tostay in the library building and use textbooks and other learning materials. In addition, thecurriculum is inadequate, as some key subjects, such as Business Management, are notoffered. Science laboratory facilities fall far short of student requirements. In Caprivi thesituation is somewhat different, as the curriculum is just appropriate. However, there is aneed for more staff development activities, so that staff members are in a better position toimplement the said curriculum. With regard to teaching staff numbers per se, it is worthnoting that all 3 colleges, Rundu, Caprivi and Ongwediva are adequately staffed with averagepupils-teacher ratios of 20, 14 and 13 respectively.

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5. Of the lessons learned from the implementation of the project, the following are themost salient: (i) Successful implementation demands skilled personnel with institutionalcompetence, dedication and familiarity with the Bank’s procedures for procurement,disbursement and reporting. It is indeed costly and time consuming to develop suchcapabilities. Because of the short-term nature of project assignment, adequate financialremuneration and/or incentives are also important to encourage motivation, dedication andretention; (ii) Financial reporting needs to be carefully reviewed by project management toensure appropriate accounting classification of financial transactions. This is to precludefinancial data errors in the balance of payment. Proper accounting of project expenditurewould facilitate identification of such expenditure by component, category and timing; (iii)There is a need for the Bank to strengthen its collaboration with other development partnersin overall project implementation. It should engage relevant ones in critical discussionsduring project identification and formulation. The current programme arrangement with ajoint annual review would not only facilitate joint planning, monitoring and evaluation of theBank’s project but also compliment the financing of some recurrent costs, that are consideredcrucial for longer term sustainability. Staff motivation through various incentives, provisionfor adequate routine maintenance and other logistic support are examples of the benefits ofsuch collaboration;

6. Other major lessons learned include the following : (vi) An outstanding loan balance, aswas the case when the initial scope of the project was completed should have been speedilyused up in order not to neutralize the positive effects of the completion of the initial scope ofa project and to avoid unnecessary charges on the balance. The fact that the loan balance wasvery slowly used reduced a sound to an apparently aging and “poorly” designed intervention.By inference, as long as there is no time-bound policy on the use of loan balances, Borrowerswill continue to request the use of such balances, then balances on balances and so forthwithout taking into consideration the immediate demands of beneficiaries, nor the cost to thetax-payer of using such balances.

7. One of the most important recommendations from the implementation of the project isthat the Bank should institute a policy on the utilisation of loan balances, placing limits on (a)the time frame for the use of such balances following the completion of the initial projectscope; and (ii) the number of requests for the use of such loan balances. It is furtherrecommended that the Bank should streamline processes leading to the final decision tocancel a loan. Another major recommendation is that the Bank should come up with a policydetermining when it is appropriate to prepare the Bank’s PCR along the continuum of projectimplementation.

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1. INTRODUCTION

1.1.1 Within the framework of its operations in the education sector in Namibia, the Bank Grouphas so far utilized the amount of UA 12.07 million out of a total of UA 13.07 million allocated tofinance two projects, one of which is the Basic Teacher Education (BTE) Project under consideration.Of the total amount allocated, UA 3.86 million came from NTF resources and UA 9.21 million fromADF. The total costs of the BTE project and the other project were respectively estimated at UA 12million and UA 6.4 million including Government contributions of UA 2 million and UA1.07 million.It is worth recalling that under the Basic Teacher Education Project a special concession was made toNamibia, a middle-income country, to benefit from concessional ADF resources.

1.1.2 The BTE project, the first financed by the Bank Group in the education sector, was approvedin June1993. Designed to improve the quality of basic education through teacher training, the twomain project sites (as per the initial project scope) were Rundu and Katima Mulilo (Caprivi) wheretwo colleges of education (i.e. teacher training colleges) were respectively established. The third mainsite of the project (in its extended scope) is Ongwediva, where existing facilities of the OngwedivaCollege of Education were rehabilitated and a new library constructed and equipped. The BTE projectalso established a congenial environment in Rundu and Caprivi for teacher education by putting upadditional facilities (teacher resource centers and support physical structures for practice teaching).

1.1.3 The initial scope of the BTE project was completed by 1996 when it became operational. Inits extended scope, the project was virtually completed by 2002 when the last disbursement wasmade and the project management team dissolved. Based on the Government’s expectation tomake use of the project’s outstanding loan balance, it was not until this year (2004) that the balancewas finally cancelled, following two successive years of no disbursement. In the absence of staffinvolved in the implementation of the project, the PCR mission undertaken to assess the completionstatus of the project had the tremendous task of reconstituting data obtained in bits and pieces in thefield.

2. PROJECT OBJECTIVES AND FORMULATION

2.1 Objectives

2.1.1 The ultimate objective of the project was an improved basic education system. Theimmediate objective was an upgraded pre-service basic teacher education through the establishmentof two new teacher education colleges with an initial intake capacity of 300 students each andrespectively turning out 100 graduates a year.

2.2 Project Description and Formulation

2.2.1 At appraisal the project contained two components:

I. Basic Teacher Education Colleges: Construction and supervision of works, of twonew Basic Teacher Education Colleges with a capacity of 300 students each, atRundu and Katima Mulilo, including the provision of furniture, equipment and textbooks.

II. Project Management: Strengthening of management capacity in the Ministry ofEducation and Culture by providing a full-time Project Manager and necessaryequipment and operating funds.

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The inputs for each component were provided under the following five categories:

Professional Services

2.2.3 Detailed working drawings and tender documents were already available when the projectwas appraised. The professional services required during the implementation of the projectincluded tendering and post-contract services i.e. regular supervision of works, preparation ofmonthly payment certificates, final inspection of works and preparation of final accounts. Thiscategory was fully financed by the Government.

Civil Works

2.2.4 This represented the major part of the project and consisted of the construction of the twocolleges with all necessary site works, including landscaping and connection to services such asexternal roads, water, sewerage, electricity and communication networks. The buildings were to beone-storey structures based on adapted standard plans. Each campus was divided into 5 zones: i)the academic facilities with library, lecture rooms and labs; ii) the students’ accommodationcomplex including kitchen and dining facilities ; iii) the staff housing complex; iv) sports facilitiesand, v) site works including technical installations. The total building area at each campus was tobe 8,230 square metres, to accommodate 300 students plus academic and administrative staff.

Furniture

2.2.5 Necessary furniture was to be provided for all the above facilities.

Equipment

2.2.6 The project would also provide equipment and educational materials required for the twocolleges, including 3 vehicles for each college. Project management would also be provided withoffice equipment and one vehicle for supervision work.

Operating Costs

2.2.7 The amount allocated for operating costs included salary for the project manager, officeexpenses, telecommunications, auditing and miscellaneous expenses.

2.3 Origin

2.3.1 In spite of some existing pre-independence facilities, including the Institute of Namibia inZambia, the educational needs of Namibians continued to grow over the years and the specificproblem of an inadequate teaching capacity was taken up by the Lusaka conference on teachereducation improvement in 1989. The shortage of teachers, especially at the basic education level,therefore results from the fact that Namibians both at home and in exile in the pre-independenceperiod had little access to education. Accordingly, there was a rather small pool of educatedNamibians from which candidates could be drawn for the teaching profession. In spite of theGovernment’s present substantial efforts to meet teacher demand through in-service trainingprogrammes, there is still a critical shortage of teachers, since 80% of the then population of 14,300teachers were either not qualified or under-qualified.

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2.4 Preparation and Appraisal

On the basis of extensive sector work undertaken especially by the Swedish InternationalDevelopment Agency (SIDA) and the United States Agency for International Development(USAID), an ADB Group general identification mission in 1991 defined a framework to supportteacher education. The mission was the basis for a preparation exercise in November 1992, whichculminated in the appraisal of the project in January 1993. The Borrower’s staff, especially that ofthe National Institute for Educational Development and senior officials of the Ministry ofEducation actively participated in the appraisal exercise by providing vital information required bythe Bank’s appraisal mission.

2.5 Negotiations and Approval

During negotiations in June 1993, no substantial issue was raised as to the design and scopeof the project, nor was any element of the project components and categories of expenditure calledinto question. During Board presentation, a few clarifications were sought on the recurrent costsand sustainability of the project. In hindsight, the issues raised were pertinent as they are stillcritical to the future success of teacher education through the operation of facilities established orrehabilitated under the project.

3. PROJECT EXECUTION

3.1 Effectiveness and Start-up

3.1.1 In addition to the general conditions, the granting of the loan was subject to the fulfilmentof the following particular conditions precedent to the entry into force of the Loan Agreement:

i) evidence of the appointment within the Ministry of Education and Culture of a full-time Project Manager having qualifications and experience acceptable to the Fund;

ii) evidence satisfactory to the Fund that the two sites identified for the Project havebeen legally secured.

3.1.2 Conditions i) and ii) were fulfilled in May 1993 and November 1993 respectively.. Afteralso fulfilling the general conditions, the loan was declared effective on 27 May 1994. Condition(i) was however inadequate, as it failed to take into account the positions of a procurementspecialist and an accountant. The lack of an accountant in particular, adversely affected the PIU’saccounting reporting obligations and created a gap, as the PIU Managers could hardly cope withdisbursement matters – a factor that slowed down implementation, especially when the Bank’sdisbursement unit had to return payment documents because they were either incomplete orincorrectly filled out. The problem was subsequently resolved only when a competent accountantassigned to the project, was able to reconstitute the project accounts many years back through apainstaking critical analysis of the old accounting records (ledgers) of the Bank and the sketchypayment data of the Borrower.

3.2.2 Furthermore, a condition on the appointment of a national counterpart to understudy theactivities of the project manager, who was a technical assistant, was necessary. Following arevelation by an audit report that the sustainability of the project could not be ensured without anational counterpart, an official of the Ministry of Education was appointed to this position.Because there were no clear guidelines to nor mechanism to monitor the responsibilities of thecounterpart, the official had no effective work done throughout his assignment and did notcontribute substantively to the effective management of the project, nor did he learn much about themanagement of the project.

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3.2 Modifications

3.2.1 All project outputs as described in the Appraisal report were eventually achieved. However,this was not obtained initially. When the pre-tender estimates for the two civil works contracts werecompleted there was a substantial shortfall of allocated funds. To be on the safe side, the scope ofwork was, therefore, reduced. However, due to increased competition in the Namibian constructionsector, the actual tenders received were extremely favourable. In addition to this, the Namibiandollar went into a sharp decline vis-à-vis the UA, which made more funds available in localcurrency than anticipated in the project budget. Since the civil works contracts were largely paid inlocal currency, substantial savings were realised. This made it possible to put back all the elementsthat had been taken out at the tender stage by extending the contracts based on the initial tenderrates.

3.2.2 Some further savings were made due to the continued decline of the local currency. TheBank, therefore agreed to widen the scope of the project to include renovations, extensions andadditions to the existing Ongwediva College of Education as well as providing additional facilities(staff housing, teacher resource centres, office blocks and teaching demonstration classrooms), at14 rural schools in Katima Mulilo and Rundu districts. However, this increased the overall cost ofthe project, especially in the category of professional services, which was totally financed by thegovernment, and in the category of civil works. All in all, the government, therefore, ended upcontributing almost the double amount anticipated at appraisal.

3.3 Implementation Schedule

3.3.1 The project was to be implemented over a period of 36 months, from August, 1993. Acomparison between the appraisal estimate and the actual implementation of key events is shownbelow.

Table 3.1Comparative Project Implementation Schedule (Estimated and Actual)

Activity Appraisal Estimate ActualBoard Presentation 06/1993 06/1993

Loan Effectiveness 09/1993 05/1994

Tendering for construction 07/1993 – 09/1993 09/1993 – 11/1993

ADF approval 10/1993 01/1994

Construction Period 11/1993 – 02/1995 03/1994 – 03/1996*/

Guarantee Period 02/1995 – 02/1996 03/1996 – 03/1997*/

Procurement of Furniture and Equipment 03/1994 – 02/1995 1995 – 1996*/

PCR 06/1996 11/2004

*/ Original contracts

3.3.2 Based on the understanding that other Development Partners, including SIDA and USAID,were substantially financing “soft” inputs, including the training of trainers, ADF financedinfrastructure solely, based on already completed design specifications. The implementation periodwas estimated to be only three years. Unfortunately, there was an initial delay of 8 months inachieving loan effectiveness. However, this did not delay the initial implementation since tenderingtook place immediately after loan approval. In fact, construction work commenced before loaneffectiveness, financed up-front from Government resources. The two colleges were completedmore or less on time and became operational in 1996. However, as described under 3.2.1 and 3.2.2above, the project was expanded on two occasions to include additional facilities. This, inevitably,led to an expanded implementation period. Unfortunately, the dynamic project managementexperienced during the first three years also came to an end when the first project manager left atthe end of his contract.

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3.4 Reporting

3.4.1 In all 31 Quarterly Project Progress Reports, covering the (overall) period from April 1994to December 2003. Although the reports were sent to the Bank on a fairly regular basis, they were(in retrospect) too repetitive and fragmented to give a precise picture of what was happeningconcerning project implementation. In particular, the financial reporting was very weak since therewas no project accountant. It was quite clear from the reports that the project manager was not ableto control the complex procedures required by the Bank concerning disbursement issues and loanadministration. This should have been detected by the Bank at an earlier stage, but it was not untilthe end of the project that the Bank took action and requested that a consultant accountant beappointed to reconstruct the accounts from the past years and put the financial management on asound footing.

3.4.2 A draft Borrower’s Project Completion Report was produced in 2003. This proved to betotally inadequate on disbursement data, project costs, contract information and implementationschedule. The PCR mission, therefore had to carry out painstaking research to determine thesebasic data which should have been available as a matter of routine.

3.4.3 From the available project files it appears that only three audit reports were received, andcommented upon, by Bank. The reports covered the periods 01/04/1996-31/03/1997, 01/04/1997-31/03/1998 and 01/04/1999-31/03/2000. The PCR mission also obtained a draft final audit reportfor the period up to 31/12/2002 during its field visit to Namibia. The first two reports were notreceived until August 2001 clearly indicating that audit reports were not submitted on a timelybasis. The comments from the Bank’s Audit Department (AUDT) to the reports show that theauditors were not working according to the standard terms of reference recommended by the Bank.The reports, nevertheless, point to a series of weaknesses in the project management, such as: i)lack of internal review procedures resulting in misstatements of accounting information; ii)expenditures not supported by original invoices; iii) improper authorisation of payment vouchersand, iv) recording of other project’s expenditure on the expenditure statement of the project. Basedon the management letter and the extent of observations made by the auditors, it was evident thatthe project lacked a qualified accountant.

3.5 Procurement

3.5.1 As agreed at loan negotiations, the procurement of goods and services was to be carried outas specified in the appraisal report:

i) International Competitive Bidding for civil works and equipment;ii) National Competitive Bidding for furniture;iii) Local Shopping for project management equipment;iv) Direct appointment in the case of Government staff

3.5.2 There were no reported problems in applying the Bank’s procurement rules. By utilisingICB for the major civil works contracts, very competitive tenders were received which greatlybenefited the project. The Bank agreed to use NCB for the additional works, described under 3.2.2above, since this involved several smaller contracts at rural locations, which would not attractinternational firms.

3.6 Financial Sources and Disbursement

3.6.1 The four tables below illustrate the differences between the planned financing of the projectand what actually took place up to the PCR stage.

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Table 3.2Planned Financing by Source (UA millions)

FE %FE LC %LC TOTAL % of TOTAL

ADF 6.91 100.0% 2.30 55.6% 9.21 83.3%

Government 0.00 0.0% 1.84 44.4% 1.84 16.7%

Total 6.91 4.14 11.05

62.5% 37.5%

Table 3.3Actual Financing by Source (UA millions)

FE %FE LC %LC TOTAL % of TOTAL

ADF 6.55 92.2% 2.47 44.1% 9.02 70.9%

Government 0.55 7.8% 3.14 55.9% 3.70 29.1%

Total 7.10 5.61 12.71

55.8% 44.2% 100.0%

Table 3.4Planned Financing by Category and Source (UA millions)

Categories ADF GRN TOTAL

A. Prof. Services - 0.26 0.26

B. Civil Works 7.36 1.17 8.53

C. Furniture 0.23 0.25 0.48

D. Equipment 1.54 - 1.54

E. Operating Costs 0.07 0.17 0.24

Total 9.21 1.84 11.05

Table 3.5Actual Financing by Category and Source (UA millions)

Categories ADF GRN TOTAL

A. Prof. Services - 1.24 1.24

B. Civil Works 8.00 1.62 9.63

C. Furniture 0.13 0.34 0.47

D. Equipment 0.50 0.45 0.95

E. Operating Costs 0.38 0.04 0.42

Total 9.02 3.70 12.71

Note: The government’s contribution in Namibian Dollars has been calculated into UA using

historical exchange rates.

3.6.2 As can be interpreted from the above tables, the overall cost of the project was UA 1.66million higher than planned at appraisal. However, this was not caused by cost over-runs on theinitially planned outputs, but by an agreed expansion of the project outputs. To this extent, savingson the ADF-financed parts of the project served as a catalyst for increased Government financing,making it possible to include rehabilitation and expansion of an additional Basic Teacher EducationCollege (at Ongwediva) as well as providing additional facilities (staff housing, teacher resourcecentres, office blocks and teaching demonstration classrooms), at 14 rural schools in Katima Muliloand Rundu districts. The overall cost increase was fully met by the Government, while there was asmall saving of UA 0.19 million (2.1 %) on the ADF loan. This un-disbursed balance has beencancelled. In overall terms, the ADF ended up financing 70.9 % of the project as compared to83.3% stipulated at appraisal.

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3.6.3 Because of the extended implementation period of the project and the additional costs ofexpanded facilities, there are substantial differences between the planned disbursement schedules andwhat actually took place. The comparative tables are shown in Annex 2.

4. PROJECT PERFORMANCE

4.1 Overall Assessment

4.1.1 The project exceeded its envisaged scope without any deviation from its initial objectives. Theinitial scope of the project, consisting of the relocation/construction of the Caprivi College ofEducation (Katima Mulilo) and the Rundu College of Education, was completed and becameoperational in 1996. The two institutions are three-year boarding teacher training colleges each with aninitial capacity of 300 students, which over the years has risen to 344 (180 females and 144 males) inRundu and to 376 (188 females and 188 males) in Katima Mulilo. The two physical facilities wereeach initially improved through additional works, including the installation of water tanks and theupgrading of certain site works. In addition, part of the project loan was used: (i) to construct 1 teacherresource center and 12 houses for teachers in the vicinity of rural schools in the Rundu area to enableteachers from the college to carry out practice teaching exercises within a congenial environment; and(ii) to construct 1 teacher resource center, 4 office blocks to serve as circuit inspection offices and 6staff houses in the vicinity of rural schools in Caprivi to enable teachers from the college to carry outpractice teaching exercises within a congenial environment.

4.1.2 With yet a substantial loan balance following the above-mentioned additions to the initialscope of the project scope, further investments were made at the Ongwediva College of Educationwhere 1 new library has been constructed and equipped in addition to the rehabilitation and alterationof existing structures in the administration and academic blocks, resulting in the provision of 10additional classrooms, 24 offices and 2 toilets. The project therefore by far exceeded the teachertraining capacity it had initially aimed at establishing. In addition, the number of graduates turned outsince the colleges became operational in 1996 (1050 in Katima Mulilo and 920 in Rundu) by farexceeds the 500 graduates from each college projected at appraisal on the basis of 100 studentsgraduating every year as from 1999.

4.2 Operating Results

4.2.1 The increased capacity of qualified teachers as evidenced by the large number of graduatesfrom the colleges of education has necessarily improved the basic education system, which atappraisal showed a trend of high repetition rates, many unmotivated drop-outs and poor pass rates atterminal examinations. The situation has since improved. The Ongwediva College of Education(OCE) is by the far the largest of the 3 colleges with a total of 903 students (529 females and 374males). The current status of operation of OCE is not quite satisfactory on account of an inadequatecurriculum which needs to focus on cognitive skills and because of a lack of resources, includingtextbooks, teaching aids, science kits, science laboratories and demonstration schools with teacherssufficiently competent and experienced.

4.2.2 With regard to the Rundu and Caprivi Colleges of Education, which were part of the initialproject scope, their operational status is characterized by similar mixed results. At Rundu adysfunctional library with inadequate ventilation makes it difficult for students to stay in the librarybuilding and use textbooks and other learning materials. In addition, the curriculum is inadequate, assome key subjects, such as Business Management, are not offered. Science laboratory facilities fall farshort of student requirements. In Caprivi the situation is somewhat different, as the curriculum is justappropriate. However, there is a need for more staff development activities, so that staff members arein a better position to implement the said curriculum. With regard to teaching staff numbers per se, it

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is worth noting that all 3 colleges, Rundu, Caprivi and Ongwediva are adequately staffed with averagepupils-teacher ratios of 20, 14 and 13 respectively.

4.2.3 In spite of obvious curricular shortcomings, the basic philosophy underlying training at thecolleges is that of a unified study for all teachers in Basic Education with opportunities forspecialisation in relation to phases of schooling and subject areas. This instructional strategy strikes abalance between professional insight and skills and subject knowledge. One merit of the curriculumthough is its degree of responsiveness to the priorities of the community. Based on tracer studies,teacher graduates consider themselves consider themselves change agents with regard to HIV/AIDSprevention, imparting appropriate life skills, acting as role models, enhancing community participationand initiating and carrying out voluntary work for the benefit of the community at large.

4.2.4 The present operating performance does not quite compare favourably with that estimated atappraisal, as it had been thought that other development partners were making substantial efforts atthat time to meet sectoral targets in respect of curriculum development, training, educationalmanagement, pedagogical reforms, etc. These “soft” elements were appropriately perceived to beessential to the success of the project in operation. A covenant (in the form of one “other condition”)to this effect was built into the project. The covenant required that not later than 3 months followingthe entry into force of the project loan, the Borrower would submit a detailed plan of costed activitiesto be carried out to cover the various dimensions (curriculum, training, pedagogical reforms, etc).Although it was fulfilled on paper, the covenant was not in practice implemented and would have beenotherwise formulated to reflect measurable and concrete achievements on the ground on the foregoingdimensions. The achievements would have been verified during supervision missions anddisbursements should have been tied to their fulfilment. In retrospect, such a “verifiable” covenantwould have ensured progress on “soft” activities which were not being financed by ADF, but whichwere to be essential to the smooth operation of the project. The present reality at completion testifiesto inadequate educatonal quality inputs (inadequate trainers in respect of science and technologysubjects, inadequate instructional resources, including science kits and textbooks, etc) as reflected inparagraphs 4.2.1, 4.2.2 and 4.5.1 and towards the end of paragraph 4.5.2.

4.3 Institutional Performance

4.3.1 At appraisal there were well over 500,071 learners as compared with some 14,300 teachers inthe education system. At the time there were 4 colleges of education (teacher training centres) for thebasic education subsystem as follows: Windhoek, Caprivi (Katima Mulilo), Ongwediva and Rundu.The Rundu and Caprivi colleges were located on provisional facilities which were part of the premisesof other existing education/training institutions. At present there are still 4 colleges with far largerintake capacities. The relocation of the Rundu and the Caprivi colleges has brought their intakecapacity to some 720 students as compared with hardly 350 at appraisal. At present, the number oflearners and teachers in the education system has almost increased by more than 30%, and the numberof teachers (which stood at a total of 18 458 in 2003) is increasing faster in relative terms than that ofpupils in the education system, which stood at a total of 569,396 in 2003. In retrospect, the need toreplace unqualified or under-qualified teachers, who represented 67% of the total teaching force atappraisal seems to have been justified, as the education quality attributable to teacher input is high, notonly as reflected in learner transition rates, but especially as measured by scores at terminal orentrance examinations.

4.3.2 Developments in the basic education sub-sector, since the advent of the project are largelyconsistent with its outputs. The strategic plan for the basic education lays emphasis on the training ofteachers who see themselves as active change agents rather than transmitters of knowledge. Emphasison the core curriculum is placed on mathematics and science education. Teaching is oriented towardsparticipatory methods an observation leading to reflection on practice and understanding.

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4.3.3 Regarding infrastructure, the standardization of facilities in the colleges represents animportant step in the direction of equality of educational opportunity, particularly at teacher educationlevel. There is a relationship between improved facilities and the general performance of students asreflected in graduation statistics. About 97% of students graduate successfully. With the rise in thenumber of trained teachers, teacher availability has been enhanced, resulting in acceptable pupils-teacher ratios generally not exceeding 30 and qualitative improvements in terms of learner outcomes.The new additional college facilities respond to the problem of inadequate infrastructure in Rundu andKatima Mulilo diagnosed at appraisal.

4.3.4 Opportunities emanating from the project in terms of intake capacities of the colleges havecontributed to a yearly increase in enrolments. The project has improved facilities and broughteducational services to the rural areas. At Ongwediva, the equipment and installation of a local areanetwork is supporting learning and research.

4.3.5 The vernacular language needs of graduating teachers is being addressed by the collegecurricula which offer vernacular language courses, thereby enhancing the capacity of the colleges toeffectively meet linguistic and socio-cultural needs of pupils throughout the basic education sub-system.

4.3.6 From a broader perspective not only in terms of the status of basic education sub-system, butindeed the education system as a whole, the major improvement of bringing development partners,including the African Development Bank, to work within the framework of the Education andTraining Sector Improvement Programme (ESTIP) marks the beginning of new impetus to develop theeducation sector on a more comprehensive and cost-effective manner.

4.4 Management and Organisational Effectiveness

4.4.1 The project management team set up to implement the project was meant to be dissolved oncethe project was completed, and, as such, is not an inherent part of the management of the institutionsestablished or strengthened through the project. At appraisal it was determined that as educationalreforms were being undertaken at many levels in Namibia, it was necessary to provide anadministrative and professional back-up system to support curriculum development and the requisitehuman resources for the management of education development. This in turn needed to be enhancedby an adequate educational management information system (EMIS). At completion, the demand forthe services of the National Institute for Educational Education (NIED) and for the EducationalManagement Information System (EMIS) has increased so much that the capacities of both NIED andEMIS need to be strengthened. Notwithstanding the foregoing, the quality of the Borrower’s presentmanagement compares favourably with the status at appraisal. Provision has been made at all thecolleges to cope with existing pedagogical and administrative requirements. In particular, theinstitution of a College Management and a College Council as layers above the authority of the Rectorhas greatly improved management capacity. The use of ad hoc and standing committees has alsostreamlined the administration of the colleges.

4.4.2 With regard to organization effectiveness of instruction the strategy of common foundationcourses, cross-curricular studies and specialization studies offer student teachers comprehensivetraining to enable them to play the flexible role of instructor, tutor, counsellor, enabler and mentor.

4.4.3 As educational reforms are being undertaken at many levels in Namibia, it has been necessaryto provide an administrative and professional back-up system to support curriculum development andthe requisite human resources for the management of education development. The National Institutefor Educational development plays this back-up role. This effort in turn is being enhanced by anadequate education management information system (EMIS).

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4.5 Staff Recruitment, Training and Development

4.5.1 At appraisal it was assumed that other development partners significantly were involved intraining activities with a view to ensuring adequate staffing of teacher training colleges. In addition,staffing requirements for the two colleges were discussed with development partners, but no formalframework existed for such discussions to be consistently followed up throughout the implementationof the project. At another level, an assessment of the Faculty of Education in UNAM pointed to apotential for producing graduates in enough numbers to teach at teacher training colleges by the timethe project would be in operation. However, over the years budgetary allocations for the upgrading ofstaff have not been consistently made. Over the years, efforts have been limited to in-house and on-the-job training. As a result, a lack of job satisfaction and scope for professional growth has given riseto high levels of teacher attrition. The problem is further compounded by the failure of externalcourses and programmes offered by institutions in the sub-region and overseas.

4.5.2 At the Caprivi College of Education, there is a total of 57 staff members, including 27 teachingstaff members, 16 administrative staff members and 14 ancillary staff members. At Rundu there istotal of 43 staff members, including 33 taeching staff members, 8 administrative and 2 ancillary staffmembers. Ongwediva has a total of 139 staff members, including 68 teaching staff members, 13administrative and 58 ancillary staff members. The present levels of staffing at all three colleges havesteadily risen since appraisal. Although the staffing situation of the colleges has been strengthened tocope with the demands of a new curriculum, there is still an acute shortage of staff in the sciences. Infact, science and mathematics teachers are in short supply at the colleges. And this is part of a generalproblem resulting from the shortage of science and mathematics teachers nationwide. The problem iscompounded by the inefficient deployment of teachers in the country.

4.5.3 Teacher continuity is problematic because of the absence of an attractive career profile.Besides, standards of recruitment have fallen, as technically, graduates of the colleges are eligible toteach at the same colleges. Limited staff development is ensured through sporadic seminars,workshops and conferences carried out on the campuses or nationally in Windhoek.

4.6 Performance of Consultants, Contractors, Suppliers and Borrower

Consultants

4.6.1 The consultants for the civil works (architects, quantity surveyors, engineers) were appointedby the Government using government procedures for selection since this category of expenditure wasentirely financed by the Government. Detailed working drawings and tender documents were alreadyavailable when the project was appraised in January/February 1993. The cost of the professionalservices up to this stage was not included in the overall costing of the project. As part of the project,the same consultants were retained for tendering and post-contract services (including regularsupervision of works, preparation of monthly payment certificates to the contractors, final inspectionof works and preparation of final accounts). When the project was expanded to include additionalfacilities, the same consultants provided the necessary professional services. All these services werefinanced from the Government contribution.

4.6.2 The PCR mission observed certain shortcomings concerning the functionality of the buildingsand related infrastructure, which are a result of poor design solutions. Both Katima Mulilo and Rundu(as well as Ongwediva) are very hot places during the summer season, requiring special attention tohow buildings relate to the climate. In all there locations, the libraries are so hot during the day that thestudents are not able to study there. The only way this situation can be improved now would be toinstall massive air conditioning equipment, which again would be very costly to run. If the buildingshad been designed with double, ventilated roofs, better shading of exposed external walls, and more

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natural cross ventilation, the heat build-up would have been substantially reduced and only moderateair-conditioning required on the hottest days.

4.6.3 At both Katima Mulilo and Rundu the back-up water supply system does not work. Inprinciple, water from the mains supply would flow into the water tank at ground level during periodsof low demand and then be pumped up into the water tower, so that there would be a reserve of waterwhen the main supply fails. For some reason, this system has never worked, indicating either a designflaw or a technical fault. However, the consultants were never able to sort out this problem.

4.6.4 On the whole, consultants initially involved in the design and supervision of the constructionand equipment of the Rundu and Caprivi Colleges of Education performed fairly satisfactorily,although not without certain shortcomings, such as the application of improper designs, which led tothe dysfunctionality of libraries among other academic spaces. Regarding the extended scope of theproject, consultants adopted a piece-meal approach, which slowed down the project a great deal. Theoverall performance of the consultants is unsatisfactory.

Contractors

4.6.5 The two major civil works contracts, at Katima Mulilo and Rundu, were handled by the samecontractor. There were initial problems with the quality of work since the contractor was new toNamibia and the national building regulations. However, these problems were quickly rectifiedthrough increased supervision by the consultants. Overall, the main contractor performed well, despiteproblems with slow disbursements from the Bank on some occasions. The contractor was able toabsorb these payment problems without delaying progress. Substantial additional work was added tothe original contracts without undue hike in rates. Unfortunately, there appears to be some unresolvedissue concerning outstanding final payment to the contractor. The lack of proper follow-up by theproject manager left this issue unresolved at the time his contract ended. Whatever the real issue is, thePCR mission is of the opinion that the outstanding balance, if any, should be paid by the Government,since the loan balance was cancelled at the end of 2002.

4.6.6 Several smaller local contractors were involved in the construction of additional facilities at 14rural schools. No serious problems were encountered on any of these contracts.

Suppliers

4.6.7 There were 21 supply contracts under the project. These included furniture for all builtfacilities, teaching equipment, library books, textbooks and vehicles. The three procurement methodsof ICB, NCB and local shopping were used. No specific problems were encountered. The performanceof the suppliers and the quality of supplies were satisfactory.

The Borrower

4.6.8 The project was implemented by the Ministry of Education and Culture (MEC), supported bythe Ministry of Works, Transport and Communication (MWTC). A full-time project manager, placedwithin the MEC, coordinated all activities. At appraisal it was envisaged that procurement of furnitureand equipment, accounting services and site supervision would be performed by existing personnel inMWTC. However, this proved to be unworkable and these functions were performed by theconsultants and the project manager.

4.6.9 The project management was very satisfactory in terms of speedy implementation of the initialbuilding programme. However, when the first project manager left at the end of his contract, and theproject was expanded to include additional facilities, a lot of the momentum was lost. Instead ofadopting a comprehensive programme, a piecemeal approach was followed which tended to delay

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implementation. There were also considerable accounting problems, to the extent that all parties losttrack of expenditures. The problems arose primarily from inconsistencies between the records of theExecuting Agency and the Bank’s ledgers. The Bank, therefore, insisted that an accountant beappointed to reconstruct the accounts. Notwithstanding these problems, the project was implementedas planned.

4.6.10 On another note, the Borrower’s performance is not quite satisfactory, as reflected inthe Executing Agency’s inability to take action on recommendations made during supervisionmissions conducted by the Bank. A case in point is the recommendation made in 1998 to sell idlelaundry machines and any other idle equipment and to plough back the proceeds into the project: atPCR the laundry machines were still standing idle on the two campuses of Rundu and Caprivi.

4.6.11 Moreover, facilities and equipment in a state of disrepair and water towers at the two collegesthat have never functioned point to the need to involve the Ministry of Works, Transport andCommunication (MWTC) in the physical management of the colleges. Given that MWTC is alreadyoverwhelmed with the responsibility for managing large-scale works and road transport projects, itmay be necessary for the Borrower to embark on a strategy of devolving responsibility for themanagement of school and college infrastructure on “Educational Facilities Units” newly establishedfor the purpose and attached to the line ministries concerned.

4.6.12 From the beneficiaries’ perspective, a number of shortcomings on the part of the Borrowermay be evident as reflected in the following observations made during the project completionexercise:

(a) the inadequacy of computer equipment and audio-visual materials provided atthe two colleges;

(b) the need for more specialized materials and infrastructure to cater for traineeswith active disabilities;

(c) the need for a follow-up programme for trainees with active disabilities;(d) the problem of programme overload, resulting in the superficial coverage of the

knowledge, skills and attitudes students are expected to learn;(e) the problem of lecturer overload through a renewed focus on having lecturers

with specialized skills to teach specific competencies in an integrated manner tostudents;

(f) the need to review and revisit the time allocation for foundation courses; and(g) the need to take steps to raise proficiency levels in English as a medium of

instruction and to ensure that the transition from using the mother tongue as amedium of instruction to using English as a medium of instruction is smooth byincorporating remedial courses into the curriculum. ; and

(h) the inadequacy of the strategy of using graduates of the colleges to teach at thesame colleges without any form of crash training.

The foregoing clears point to the need for the line Ministry to keep track of the problems and seekways to mobilize resources to resolve them.

4.7 Conditions and Covenants

4.7.1 Two covenants or “other conditions” were attached to the project, formulated as follows:

The Borrower shall:

i) provide, not later than six (6) months following the entry into force of the LoanAgreement, a detailed list of equipment required for the Project;

13

ii) submit, not later than three (3) months following the entry into force of the LoanAgreement, a plan for the costed activities related to curriculum, training, management andpedagogical reforms demonstrating that they fit into the overall framework of the Project in fulloperation.

4.7.2 Conditions i) and ii) were fulfilled in November 1994 and November 1993 respectively. Inhindsight, these conditions were all necessary, as their fulfilment made for the timely implementationof the project. However, the fulfilment of condition (ii) was only good enough on paper, as, in reality,most of the shortcomings of the project in operation relate to curriculum, the availability of enoughtrainers at the colleges, management and pedagogical reforms as reflected in a subsequent analysis insections 4.2 and 4.5. this condition should have been formulated to reflect verifiable time-boundactions to have been followed up and enforced during supervision missions.

5. SOCIAL AND ENVIRONMENTAL IMPACT

5.1 Social Impact

5.1.1 The increased capacity of pre-service teacher education and the consequent availability ofteachers (almost 2000 who have since joined the teaching force since the 2 colleges of Education inRundu and Caprivi became operational) and the establishment of support facilities (teacher resourcecentres and housing units to accommodate teachers on practice teaching) around Rundu and KatimaMulilo have helped to expand access to basic education. In addition, the improved quality of basiceducation received by children is positively affecting the nature and scope of education received byadults in the non-formal sub-system, as both are mutually reinforcing, especially in terms of healthpractices and life skills.

5.1.2 In spite of certain shortcomings, the curriculum has improved in relative terms, as it is moreresponsive to learners needs. This has increased the external efficiency of the school system. A majorsocial contribution of the project has been the incorporation into the curriculum of the criticalemerging issues of HIV/AIDS and environmental management, thereby sensitising not only students,but also indeed the local communities to these issues.

5.1.3 Furthermore, the increase in the number of girls in the basic education sub-system, especiallyon account of the availability of a large number of female teachers serving as role models for girls is asignificant contribution to Government’s efforts to promote gender equity in the delivery of education.The establishment of hostels at the two colleges of Education (Rundu and Caprivi) is particularlyadvantageous to girls, as most parents are unwilling to send their children to educational institutionswithout hostels.

5.1.4 The comprehensive scope of subjects taught (including home ecology, business education,accounting, agriculture, life science, technical studies, etc) is expected to offer career opportunities tostudents joining the world of work. Enhanced external efficiency of the school system in a context ofregularly revised curricula s thus expected enhance the relevance of education.

5.2 Environmental Impact

5.2.1 The project is classified as Category 2 due to the building works involved. However, nosignificant negative impact on the environment was observed at project completion. The newbuildings at the various sites are all one-storey with shallow strip foundations and do not affect theground water levels. All sewage has been carried to oxidation ponds, which is an environmentallysound principle with no contamination of ground water sources. Landscaping in terms of storm waterdrainage, paving of internal roads, and grass coverage were included in the building contracts. Tofurther enhance the quality of the environment, the students have been involved in additional tree

14

planting, especially at Rundu College which was built on a barren, sandy site prone to soil erosion.Several hundred trees have been planted, many of them bearing edible fruits, and are now giving shadein a climate characterised by a very hot sun. With appropriate drainage and sewage systems (exceptfor Ongwediva) and landscaping conducive to the maintenance of a healthy vegetation cover on theRundu and Katima college campuses, the project is expected to improve environmental management,especially through strong education programmes offered to teachers and the snowball effect of suchprogrammes on young primary school learners, whom graduates of the two colleges are expected toteach.

5.2.2 Environmental awareness is promoted in the three colleges through core subjects includingIntegrated Natural Science, Social Studies and Educational Theory and Practice, or as topics ofdiscussion and for creative writing in language studies, thereby constantly reminding learners of theneed to appreciate and preserve the environment. This awareness will in time impact on a larger scaleas the students become teachers in primary schools all over the country.

5.2.3 There are minimal adverse environmental effects, especially those attributable to the use ofalien grass from Australia, which has not done well on the main playground. An Australian seed wasused which did not thrive under the local conditions, as not enough watering was applied initially. Thesports field is now very dusty and, as such, is a source of atmospheric nuisance and a health hazard.

6. PROJECT SUSTAINABILITY

6.1 Provision is made by the Government to meet salary- and maintenance-related recurrent costs.The sustainability of the project is primarily based on the adequacy of the Government budgets, andonly tangentially, on the ability of the colleges themselves to meet some of their recurrent costs usingtheir own independent budgets. This means that efforts being made by the Government and thecolleges will have to be consolidated with cost recovery and cost reduction strategies, including feesand charges for the use of school facilities by the community. The scheme - which enables students,especially those from disadvantaged homes, to benefit from the education and training offered by thecolleges through loans and only pay back the Government when they are employed – has turned out tobe successful, as there are rarely any cases of default. In fact, other cost recovery measures have alsobeen enforced. In addition, partnerships with the private sector and other interest groups will have tobe built into a comprehensive strategy with a view to the enhanced sustainable operation of thecolleges.

6.2 Support facilities, such as units of small houses and circuit inspectors offices, which were builtonly as complementary measures to enhance practice teaching by students from the colleges aroundRundu and Katima Mulilo, have actually turned out to be an essential motivating factor for suchstudents. In fact, these facilities are being reported to create a conducive environment for teachertraining in rural areas. Sustainability would b further enhanced if more of such facilities were built toattract trainee teachers seeking opportunities for hands-on experience.

6.3 Project sustainability also depends on the availability of staff at the colleges and the level ofmaintenance of facilities and equipment. Teachers are barley enough to meet all the courserequirements of the colleges, especially in the areas of science, mathematics and technology. TheGovernment needs to do more to set up new programmes at UNAM and other institutions of a similarlevel to train trainers for the teacher training colleges and to make arrangements for the continuoustraining and professional development of such trainers both at home, within the sub-region and/orabroad. In this connection, the Government’s strong commitment to basic education needs to bematched by increased and sustained budgetary allocations to education. Despite these efforts teachers’salaries are still low and teacher attrition is a major problem. Moreover, efforts to improve teachers’output are being undermined by the HIV/AIDS pandemic, which is taking a toll on teachers.

15

6.4 Lastly, designing and implementing a project of the present scope within a coordinationframework of development partners, such as the present Education and Training Sector andImprovement Programme (ETSIP), is one of the most efficient ways of ensuring sustainability.Because the BTE project was known among development partners, important inputs by way ofcomputers were provided – which in one of the colleges led to the introduction of an Integrated MediaEducation course aimed at enabling students to make adequate use of computers to maximize learning.This added dimension of quality can only enhance teachers’ learning, let alone pupils’ learning as theultimate snowball effect.

7. PERFORMANCE OF THE BANK AND THE BORROWER

7.1 Project Objectives and Justification

The Bank’s interpretation of Namibia’s education sector priorities as stated in the PresidentialCommission on Education, Culture and Training report of 1999 and the resultant project objectiveswere appropriate. The project was designed to respond to the Government’s major concern about animproved basic education sub-system and an upgraded pre-service teacher education sub-system. Thisobjective has been achieved.

7.2 Project Implementation and Operating Outcomes

7.2.1 The project was supposed to be implemented over a period of 36 months beginning in August1993. The initial scope of the project was completed in 1996 and the two Colleges of Education ofRundu and Caprivi (Katima Mulilo) became operational in the same year. The extended scope of theproject, which covered the construction of teacher resource centres and support facilities for practicingteachers, as well as rehabilitation and extension of the infrastructure at the Ongwediva College ofEducation, were completed.

7.2.2 The Bank’s supervision missions and desk supervision actions were adequate and led to theinitial scope of the project being completed on time in 1996. The Government was very proactive inimplementing the project and even pre-financed certain aspects to expedite progress. In spite of theshortcomings pointed out in section 4.2, the project may be seen to be a success in terms of thenumbers of qualified graduates turned out so far since establishment or expansion of the colleges (920from Rundu, 1050 from Caprivi and 1200 from Ongwediva) and the snowball effect on the number ofschools in the basic education sub-system receiving qualified teachers. The distribution of thesegraduates, especially across deprived rural areas is also enhancing equity in the provision of qualitybasic education in Namibia.

8. OVERALL PERFORMANCE AND RATING

With the two colleges (Rundu and Caprivi) operational as from 1996 and the capacity of theOngwediva College of Education and effective use being made of all facilities, project objectives haveclearly been achieved. The project has resulted in a marked improvement in the overall teaching andlearning environment. The overall outcome of the project is satisfactory. The project outputs wererealized within the allocated budget. With regard to learner outcomes, it is worth noting that about90% of students enrolled have been graduating from the colleges.

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9. CONCLUSIONS, LESSONS LEARNED AND RECOMMENDATIONS

9.1 Conclusions

9.1.1 As envisaged at appraisal, the project has succeeded to expand access to quality education, onan equitable basis, to vulnerable population groups in deprived rural areas through an increasedcapacity of trained teachers. The main failure of the project is that progress on curriculum, training oftrainers, educational management mechanisms and other quality inputs (including appropriatetextbooks in adequate quantities) has not matched the pace of an expanded teacher capacity for thebasic education sub-system. Nevertheless, learner outcomes in terms of gains in pupils’ scores intransition and terminal examinations reported by schools in the catchment areas of the north benefitingfrom graduates of the teacher training colleges underscore the importance of the project.

9.1.2 Measured against one of the main risks perceived at appraisal of too few primary and juniorsecondary schools to absorb trained teachers, the project has instead served as the dynamo for theestablishment of new schools. In fact, all reports point to the conclusion that all 3 colleges need to beexpanded to meet teacher demand in the medium and long terms.

9.2 Lessons Learned

Lessons to be drawn from this project are as follows:

Formulation & Project Rationale

(i) Following its design, a project should be formulated in such a way that a set of complementarypriority requirements, which respond to the initial objectives of the said project, are determined at leastas an annex\in the project implenentation document – just in case there is need to expand the projectscope in the event of loan savings. While the present project was completed on time, it took muchlonger to implement its extended scope because of the piece-meal and amateurish manner in which theproject management team handled the task.

(ii) Although other donors (especially SIDA and USAID) were involved in the design andpreparation of the project, their commitment to ensure that other educational quality inputs (trainers,curriculum inspectors, basic learner needs including textbooks, etc) were in place after the project hadbeen completed and was operational would have been more effective within a formal coordinationframework of development partners.

(iii) The project rationale of training teachers for the basic education system with too manyunqualified or under-qualified teachers was rather narrow and did not take into account shortages oftrainers at the colleges of education themselves and elsewhere (at the level of inspection andmanagement); the rationale would have been expanded to include the need to use some of thegraduates to teach at the colleges provided they had undergone some form of additional training – inwhich case mother institutions like UNAM would have been alerted at appraisal to begin to set upsuch tailor-made programmes (cf. 4.6.12h). By the same token some of the brilliant graduates wouldhave been made to undergo training at UNAM under similar tailor-made arrangements to becomeinspectors and managers to enforce quality at the basic education sub-system.

(iv) In view of the increasing problem of teacher attrition at institutions established by projects andsuch as is being experienced under the present project, more emphasis should be placed onmotivational factors, including salaries and career development prospects as critical aspects of projectdesign.

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Implementation

(i) The experience from the management of this project has shown that successful implementationdemands skilled personnel with institutional competence, dedication and familiarity with the Bank’sprocedures for procurement, disbursement and reporting. It is indeed costly and time-consuming todevelop such capabilities. Because of the short-term nature of project assignment, adequate financialremuneration and/or incentives are also important to encourage motivation, dedication and retention.

(ii) Financial reporting needs to be carefully reviewed by project management to ensureappropriate accounting classification of financial transactions. This is to preclude financial data errorsin the balance of payment. Proper accounting of project expenditure would facilitate identification ofsuch expenditure by component, category and timing.

(iii) There is a need for the Bank to strengthen its collaboration with other development partners inthe overall project implementation. It should engage relevant ones in critical discussion during projectidentification and formulation. The current programme arrangement with a joint annual review wouldnot only facilitate joint planning, monitoring and evaluation of the Bank’s project but also complimentthe financing of some recurrent costs, that are considered crucial for longer term sustainability. Staffmotivation through various incentives, provision for adequate routine maintenance and other logisticsupport are examples of the benefits of such collaboration.

(iv) Recommendations following supervision missions undertaken by the Bank should beconsidered legitimate covenants and must be based on a mechanism for enforcement, such asdisbursements. Because most recommendations are not enforceable even after the Bank has sentseveral reminders to an Executing Agency, important actions, such as the idle equipmentrecommended for sale, were ignored.

(v) When a project is managed by a technical assistant, a national counterpart recruited tounderstudy the technical assistant’s activities must be closely supervised on the basis of clear terms ofreference, guidelines and accountability mechanism.

(vi) An outstanding loan balance, as was the case when the initial scope of the project wascompleted must be speedily used up in order not to neutralize the positive effects of the completion ofthe initial scope of a project and to avoid unnecessary charges on the balance. The fact that the loanbalance was very slowly used reduced a sound to an apparently aging and “poorly” designedintervention. By inference, as long as there is no time-bound policy on the use of loan balances,Borrowers will continue to request the use of such balances, then balances on balances and so forthwithout taking into consideration the immediate demands of beneficiaries, nor the cost to the tax-payerof using such balances.

Compliance with Loan Conditions and Covenants

Compliance with loan conditions may not necessarily translate into a desired outcome if thecondition itself is not formulated in such a way as to bring about the outcome. A case in point is the“other” condition ii, which although fulfilled on paper did not lead to parallel improvement-orientedactions on curriculum, management and curricular reforms. Such actions would have improved thestatus of the completed project in operation.

Performance Evaluation and Project Outcomes

(i) Adequate resources (libraries, science kits, textbooks, science laboratories, workshops) mayoffset many of the negative effects of poor teaching, as is the case in all 3 colleges;

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(ii) Programmes should be constantly evaluated to ensure that they are still responding to the needsof educational institutions. There is a need to regularly review the curriculum in terms of relevanceand critical issues. Improved synchronization between the school and teacher education curricula isessential.

(iii) Since increasingly students with disabilities are gaining access to colleges, the curriculum musttake into account appropriate classrooms, teaching aids and instructional materials for this target groupof trainees. In this regard, specialized classrooms (including laboratories) suitable for programmesshould be set up. Such rooms must be adapted to the needs of a college of education with supportfacilities for microteaching;

(iv) Teacher training projects should always take into account teacher continuity, which can beguaranteed through incentives and attractive career profiles and must be adequately discussed at thedesign and preparation stages.

(v) The capacity for school maintenance should consistently be strengthened in educationalinstitutions by incorporating maintenance into the curriculum and providing training in preventivemaintenance both to the staff and students alike, as is the case in the 3 project colleges. However, acentral facility must take ultimate responsibility for those maintenance cases, such as the water tanksthat are beyond the competence of school/college authorities.

Sustainability

(i) Loan schemes work especially for projects of a nature that guarantees employment for alltrainees after graduation, such as the present teacher training project. Loan schemes, as such, shouldbe consistently used to enhance other sustainability-related measures, since they do not pose anyfundamental equity issues.

(ii) Enhanced consultation among development partners is essential to the sustainability ofprojects, especially with respect to the provision of additional quality inputs that enhance learning.Computers provided to enhance the efforts of teachers under the present project are a good example.

(iii) When a project is being managed by a technical assistant (TA), as was the case with thepresent intervention, a national counterpart should be appointed to understudy the activities of the TAwith a view to transferring the TA’s managerial skills to other government projects following thedeparture of the TA.

9.3 Recommendations

For the Fund

(i) The format of the Bank’s follow-up mission report will require critical review in order togenerate relevant data required for a general overview of the project performance. It is becomingincreasing apparent that collection and analysis of project data are essential elements of an effectivemonitoring and evaluation process, and should therefore, be an integral part of the project to befinanced. It is therefore, unrealistic to rely exclusively on the MOE, since the capacity to collect suchvital statistics for the project is presently weak.

(ii) It would also be constructive if the Bank could regularly inform project management on thestatus of reporting guidelines including modifications and new developments. Upgrading the capacityin proper project management, data collection and analysis, reporting and loan administration eitherthrough the Bank internal training or in collaboration with other local management institutions inNamibia would be a valuable asset to project implementation.

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(iii) The Bank should institute a policy on the utilisation of loan balances, placing limits on (a) thetime frame for the use of such balances following the completion of the initial project scope; and (ii)the number of requests for the use of such loan balances. It should, in addition, streamline processesleading to the final decision to cancel the loan.

(iv) The Bank should come up with a policy determining when it is appropriate to prepare theBank’s PCR along the continuum of project implementation.

For the Executing Agency

(i) The use of resources (library, laboratories, etc) should be closely monitored to ensure that theyeffectively promote learning.

(ii) Ensure that colleges of education are responsible for syllabi and curricula, and theirinstitutional capacity in these areas is regularly assessed.

(iii) Ensure that the climatically dysfunctional libraries provide a congenial learning environmentby adequately equipping them with air conditioners;

(iv) With a view to achieving education for all, ensure that facilities at the colleges of education aremodified to accommodate the needs of trainees with special needs.

For the Borrower

(i) Sell off the idle laundry equipment and other items, as recommended by supervision missionsand followed up by reminders;

(ii) Ensure that the Ministry of Works Transport and Communications do all maintenance-relatedworks at the colleges and attend to the improperly installed water towers so that they are in goodworking condition;

(iii) In the medium- and long-terms, establish a more responsive mechanism, such as an“Educational Facilities Unit” to handle maintenance, physical installation and other similarinfrastructure-related requirements at the colleges.

ANNEX 1MAP OF NAMIBIA

This map is provided by the African Development Bank exclusively for the use of the readers of the

report to which it is attached. The names used and the borders shown do not imply on the part of the

Bank and its members any judgement concerning the legal status of a territory nor any approval or

acceptance of these borders.

Annex 2Page 1/2

Planned and Actual Expenditure by Year, Category and Sources of Finance

AS PER APPRAISAL REPORT (UA millions)ADF

Categories 1993 1994 1995 1996 Total

A. Prof. Serv. 0.00

B. Civil Works 0.74 4.78 1.47 0.37 7.36

C. Furniture 0.19 0.05 0.23

D. Equipment 1.39 0.15 1.54

E. Op. Costs 0.02 0.03 0.03 0.00 0.07

Total 0.75 6.39 1.70 0.37 9.21

GOVERNMENT


A. Prof. Serv. 0.06 0.09 0.09 0.01 0.26

B. Civil Works 0.12 0.76 0.23 0.06 1.17

C. Furniture 0.20 0.05 0.25

D. Equipment 0.00

E. Op. Costs 0.04 0.06 0.06 0.01 0.17

Total 0.22 1.11 0.43 0.08 1.84

TOTAL PROJECT


A. Prof. Serv. 0.06 0.09 0.09 0.01 0.26

B. Civil Works 0.85 5.54 1.71 0.43 8.53

C. Furniture 0.00 0.39 0.10 0.00 0.48

D. Equipment 0.00 1.39 0.15 0.00 1.54

E. Op. Costs 0.06 0.08 0.08 0.01 0.24

Total 0.98 7.49 2.13 0.45 11.05

Annex 2Page 2/2

TOTAL DISBURSEMENTS AT PCR IN UA (= ACTUAL EXPENDITURE)ADF

1994 1995 1996 1997 1998 1999 2000 2001 2002 TOTAL

A. Prof. Serv. 0.00

B. Civil Works 956,865.98 1,671,815.76 1,110,938.35 842,575.58 1,546,248.44 1,330,655.29 367,216.26 176,824.83 8,003,140.49

C. Furniture 50,222.13 82,106.02 132,328.15

D. Equipment 173,454.13 246,000.95 46,164.75 38,835.13 504,454.96

E. Op. Costs 92,508.99 55,953.51 18,255.89 212,791.22 379,509.61

TOTAL 956,865.98 1,671,815.76 1,161,160.48 1,016,029.71 1,720,863.45 1,576,656.24 469,334.52 57,091.02 389,616.05 9,019,433.21

GOV (UA AT HISTORICAL EXCHANGE RATES)

1994 1995 1996 1997 1998 1999 2000 2001 2002 TOTAL

A. Prof. Serv. 241,442.51 250,283.48 74,475.44 335,053.28 131,592.19 111,388.17 46,645.54 22,535.13 30,631.62 1,244,047.36

B. Civil Works 349,401.79 1,246,973.93 12,744.71 57,539.91 -67,411.82 33,952.54 -10,329.00 1,622,872.06

C. Furniture 242,456.97 91,323.44 8,848.08 342,628.49

D. Equipment 330,843.30 118,503.94 449,347.24

E. Op. Costs 593.41 27,253.00 1,541.35 6,900.53 36,288.29

TOTAL 590,844.30 1,497,850.82 687,773.42 603,961.92 73,028.45 111,388.17 46,645.54 63,388.20 20,302.62 3,695,183.44

TOTAL PROJECT

1994 1995 1996 1997 1998 1999 2000 2001 2002 TOTAL

A. Prof. Serv. 241,442.51 250,283.48 74,475.44 335,053.28 131,592.19 111,388.17 46,645.54 22,535.13 30,631.62 1,244,047.36

B. Civil Works 1,306,267.77 2,918,789.69 1,123,683.06 900,115.49 1,478,836.62 1,330,655.29 367,216.26 33,952.54 166,495.83 9,626,012.55

C. Furniture 0.00 0.00 292,679.10 91,323.44 90,954.10 0.00 0.00 0.00 0.00 474,956.64

D. Equipment 0.00 0.00 330,843.30 291,958.07 0.00 246,000.95 46,164.75 38,835.13 0.00 953,802.20

E. Op. Costs 0.00 593.41 27,253.00 1,541.35 92,508.99 0.00 55,953.51 25,156.42 212,791.22 415,797.90

TOTAL 1,547,710.28 3,169,666.58 1,848,933.90 1,619,991.63 1,793,891.90 1,688,044.41 515,980.06 120,479.22 409,918.67 12,714,616.65

ANNEX IIIPage 1/2

NAMIBIA - BASIC TEACHER EDUCATION PROJECTPerformance Evaluation and Rating

IMPLEMENTATION PERFORMANCEComponent Indicators Score Remarks

1. Adherence to Time Schedule 2 Not including activities for theexpanded facilities

2. Adherence to Cost Schedule 4 Not including expandedfacilities

3. Compliance with Covenants 2 Fulfilment only of modestimpact

4. Adequacy of Monitoring & Evaluation and Reporting 2 Reporting only of partial impact5. Satisfactory Operations (if applicable) 3 All facilities in operationTOTAL 13

Overall Assessment of Implementation Performance 2.6 Satisfactory

BANK PERFORMANCEComponent Indicators Score Remarks

1. At Identification 32. At Preparation 2 Preparation and Appraisal were

done simultaneously3. At Appraisal 34. At Supervision 3TOTAL 11

Overall Assessment of Bank Performance 2.75 Satisfactory

PROJECT OUTCOMEComponent Indicators Score Remarks

1. Relevance and Achievement of Objectivesi) Macro-economic Policy 3 Project falls within the national

plan for improved basiceducation

ii) Sector Policy 4 Strengthening basic education inline with sector policy

iii) Physical (incl. Production) 4 All facilities were successfullycompleted

iv) Financial 4 No cost overrunv) Poverty Alleviation; Social; Gender 3 Improved basic education may

reduce poverty generallyvi) Environment 3 No negative impactvii) Private Sector Development 3 Improved basic education useful

for employersviii) Other (gender) 3

2. Institutional Developmenti) Institutional Framework incl. Restructuring 3ii) Financial and Management Information Systems including Audit Systems 3iii) Transfer of Technology 3iv) Staffing by qualified persons; training and counter-part staff 3 Facilities adequately staffed but

need for further training

3. Sustainabilityi) Continued Borrower Commitment 4 The education sector receives

the highest percentage ofbudgetary support

ii) Environmental Policy 3iii) Institutional Framework 3iv) Technical Viability and Staffing 3 Facilities adequately staffed but

need for further trainingv) Financial viability including cost recovery systems 3 Fee-paying system in placevi) Economic Viability 3 Investment in basic education

has a direct impact on theeconomy

vii) Environmental Viability 3viii) O&M facilitation (availability of recurrent funding, foreign exchange,spare parts, workshop facilities etc.)

2 Weak maintenance systemneeds to be improved

4. Economic Internal Rate of return N/ATOTAL 63

Overall Assessment of Outcome 3.13 Highly Satisfactory

v

ANNEX IIIPage 2/2

Explanatory Notes for Scores

Relevance and Achievement of Objectives:4 marks : if the relevance of objectives is fully confirmed, the project has achieved or exceeded all itsmajor objectives, and the project has achieved, or is likely to achieve, substantial development results,without major shortcomings.3 marks : provided the relevance of objectives is generally confirmed, the project has achieved most ofits major relevant objectives, and has achieved, or is expected to achieve, satisfactory developmentresults, with only a few shortcomings.2 marks : the project failed to achieve most of it major objectives, has not yielded, and is not expectedto yield, substantial development results, and has significant shortcomings.1 mark : the project failed to achieve any of its major objectives and has not yielded, and is notexpected to yield, worthwhile development results.

Achievement of Institutional Development (ID) Objectives4 marks : the achievement of ID objectives is in full accordance with the project objective or hasexceeded, or is likely to exceed it, without major shortcomings.3 marks : the achievement of ID objectives is likely to be substantial2 marks : the achievement of ID objectives is likely to be of only intermediate relevance and modestefficacy or impact.1 mark : the achievement of ID objectives is of minimal and negligible efficacy or impact.

Sustainability4 marks : sustainability of most project achievements and benefits is highly likely to last.3 marks : sustainability of most project achievements and benefits is likely to last.2 marks : sustainability of most project achievements and benefits is uncertain.1 mark : sustainability of most project achievements and benefits is unlikely

1

ANNEX IVRECOMMENDATIONS AND FOLLOW-UP MATRIX

A. LESSONS LEARNED

MAIN FINDINGS ANDCONCLUSIONS

LESSONS LEARNED FOLLOW-UPACTIONS

RESPONSIBILITY

Formulation & Project

Rationale

(i) Following its design, a project

should be formulated in such a way that

a set of complementary priority

requirements are identified in an annex.

These should respond to the initial

objectives of the said project – just in

case there is need to expand the project

scope in the event of loan savings. While

the present project was completed on

time, it took much longer to implement

its extended scope because of the piece-

meal and amateurish manner in which

the project management team handled

the task.

(ii) Although other donors

(especially SIDA and USAID) were

involved in the design and preparation of

the project, their commitment to ensure

that other educational quality inputs

(trainers, curriculum inspectors, basic

learner needs including textbooks, etc)

were in place after the project had been

completed and was operational would

have been more effective within a

formal framework of development

partners linked by some form of

memorandum of understanding.

(iii) The project rationale of

training teachers for the basic education

system with too many unqualified or

under-qualified teachers was rather

narrow and did not take into account

shortages of trainers at the colleges of

education themselves and elsewhere (at

the level of inspection and

management); the rationale would have

been expanded to include the need to use

some of the graduates to teach at the

colleges provided they had undergone

some form of training – in which case

mother institutions like UNAM would

have been alerted at appraisal to begin to

set up such tailor-made programmes (cf.

4.6.12h). By the same token, some of the

brilliant graduates would have been

made to undergo training at UNAM

under similar tailor-made arrangements

to become inspectors and managers to

enforce quality at the basic education

sub-system.

The Bank should take thisinto account in designingfuture projects. The set ofcomplementaryrequirements may bemodified on the basis ofchanging circumstancesand other priorities.

The Bank shouldstrengthen its coordinationmechanisms under futureprojects.

The Bank shouldconsistently get acommitment fromgovernments to providetrainers of trainers forprojects of this scope andshould place emphasis onthis aspect duringsupervision.

The Bank (ONSD, PPOR,ONCB)

The Bank (ONSD and POPR)

The Bank (ONSD) and theGovernment

2

(iv) In view of the increasing

problem of teacher attrition at

institutions established by projects and

such as is being experienced under the

present project, motivational factors,

including salaries and career

development prospects are critical

aspects of project design.

At the project design stagethe Bank should discussthese aspects thoroughlywith the Government andshould pursue policydialogue on them andrelated budgetary issues.projects

The Bank (ONSD, ONCB)andthe Government

Project Implementation (i) The experience from the

management of this project has shown

that successful implementation demands

skilled personnel with institutional

competence, dedication and familiarity

with the Bank’s procedures for

procurement, disbursement and

reporting. It is indeed costly and time

consuming to develop such capabilities.

Because of the short-term nature of

project assignment, adequate financial

remuneration and/or incentives are also

important to encourage motivation,

dedication and retention.

(ii) Financial reporting needs to be

carefully reviewed by project

management to ensure appropriate

accounting classification of financial

transactions. This is to preclude financial

data errors in the balance of payment.

Proper accounting of project expenditure

would facilitate identification of such

expenditure by component, category and

timing.

(iii) There is a need for the Bank to

strengthen its collaboration with other

development partners in the overall

project implementation. It should engage

relevant ones in critical discussion

during project identification and

formulation. The current programme

arrangement with a joint annual review

would not only facilitate joint planning,

monitoring and evaluation of the Bank’s

project but also compliment the

financing of some recurrent costs, that

are considered crucial for longer term

sustainability. Staff motivation through

various incentives, provision for

adequate routine maintenance and other

logistic support are examples of the

benefits of such collaboration.

(iv) Recommendations following

supervision missions undertaken by the

Bank should be considered legitimate

covenants and must be based on a

mechanism for enforcement, such as

disbursements. Because most

recommendations are not enforceable

even after the Bank has sent several

reminders to an Executing Agency,

The Bank should be takemore stringent measures toensure that project staff arenot only qualified but areheld accountable for theirpoor performance. TheBank should not ascertainthat their conditions ofwork are motivating butthat they should be givenrecognition for outstandingperformance.

The Bank’s operations unitshould work more closelywith the disbursement unitto ensure that propersystems are in place duringimplementation.

During implementation theBank should consistentlyset up formal systems forcoordination, especiallywhere there are no sectorprogrammes.

The Bank should follow upsuch recommendations andshould condition theirimplementation todisbursements if necessary.

The Bank (ONSD) and theGovernment).

The Bank (ONSD, FFCO) andthe Government).

The Bank (ONSD, ONCB,POPR) and the Government).

The Bank (ONSD, POPR) andthe Government).

3

important actions, such as the idle

equipment recommended for sale, were

ignored.

(v) When a project is managed by

a technical assistant, a national

counterpart recruited to understudy the

technical assistant’s activities must be

closely supervised on the basis of clear

terms of reference, guidelines and

accountability mechanism.

(vi) An outstanding loan balance,as was the case when the initial scope ofthe project was completed, must bespeedily used up in order enhance thepositive effects of a project whose initialscope has been completed and to avoidunnecessary charges on the balance. Thefact that the loan balance was veryslowly used reduced a sound project toan apparently aging and “poorly”designed intervention. By inference, aslong as there is no time-bound policy onthe use of loan balances, borrowers willcontinue to request the use of suchbalances, then balances on balances andso forth without taking intoconsideration the immediate demands ofbeneficiaries, nor the cost to the tax-payer of using such balances in a piecemeal manner.

Future projects shouldconsistently makeprovision for the closesupervision of nationalcounterparts who take overproject management.

The Bank should come upwith a policy that governsthe extent to which theinitial scope of a projectcan be expended and placestime limits on the use ofunexpended loan balanceswhere they arise.

The Bank (ONSD, ONCB)and the Government

The Bank (PPOR, ONSD,GECL, FFCO) and theGovernment

Compliance with LoanConditions and Covenants

Compliance with loan conditions maynot necessarily translate into a desiredoutcome if the condition itself is notformulated in such a way as to bringabout the outcome. A case in point is the“other” condition ii, which althoughfulfilled on paper did not lead to parallelimprovement-oriented actions oncurriculum, management and curricularreforms. Such actions would haveimproved the status of the completedproject in operation.

The Bank’s operation unitsshould work more closelywith the Bank’s legal unitto ensure that the intent ofconditions is clear,comprehensives and allowsno room for loopholes.

The Bank (ONSD, GECL)and the Government

Performance Evaluation &Project Outcome

(i) Adequate resources (libraries,

science kits, textbooks, science

laboratories, workshops) may offset

many of the negative effects of poor

teaching, as is the case in all 3 colleges;

(ii) Programmes should be

constantly evaluated to ensure that they

are still responding to the needs of

educational institutions. There is a need

to regularly review the curriculum in

terms of relevance and critical issues.

Improved synchronization between the

school and teacher education curricula is

essential.

(iii) Since increasingly students

with disabilities are gaining access to

colleges, the curriculum must take into

account appropriate classrooms,

teaching aids and instructional materials

for this target group of trainees. In this

regard, specialized classrooms

The Government and theBank should assess theseresources in detail towardsproject completion andtake appropriate action.

Policy issues of this typedshould be taken up at PCRsand beyond.

The Bank and thegovernment should ensurethat these criteria are metas through policy dialogueand complementary formsof assistance.

The Government and theBank

The Government and theBank.

The Government and theBank

4

(including laboratories) suitable for

programmes should be set up. Such

rooms must be adapted to the needs of a

college of education with support

facilities for microteaching;

(iv) Teacher training projects

should always take into account teacher

continuity, which can be guaranteed

through incentives and attractive career

profiles and must be adequately

discussed at the design and preparation

stages.

(v) The capacity for school

maintenance should consistently be

strengthened in educational institutions

by incorporating maintenance into the

curriculum and providing training in

preventive maintenance both to the staff

and students alike, as is the case in the 3

project colleges. However, a central

facility must take ultimate responsibility

for those maintenance cases, such as the

water tanks that are beyond the

competence of school/college

authorities.

The Bank and thegovernment should placemore emphasis on theseaspects as part of policydialogue and throughactions directly aimed atsectoral rehabilitation.

The Bank should ensurethat the maintenancestrategy in placeadequately responds to theneeds on the ground.



Sustainability (i) Loan schemes work especially

for projects of a nature that guarantees

employment for all trainees after

graduation, such as the present teacher

training project. Loan schemes, as such,

should be consistently used to enhance

other sustainability-related measures,

since they do not pose any fundamental

equity issues.

(ii) Enhanced consultation among

development partners is essential to the

sustainability of projects, especially with

respect to the provision of additional

quality inputs that enhance learning.

Computers provided to enhance the

efforts of teachers under the present

project are a good example.

(iii) When a project is being

managed by a technical assistant (TA),

as was the case with the present

intervention, a national counterpart

should be appointed to understudy the

activities of the TA with a view to

transferring the TA’s managerial skills

to other government projects following

the departure of the TA.

The government shouldmake adequate budgetprovisions for suchschemes.

The government shouldtake action to ensure thatdevelopment partners areholistically involved insector activities thatenhance learningoutcomes.

The government shouldconsistently attach aqualified and devotednational counterpart towork with the TA. Part ofthe TA’s terms of referenceshould be to train thenational counterpart andthe TA must be heldaccountable for the transferof skills as such.




5

B. RECOMMENDATIONS

MAIN FINDINGS AND

CONCLUSIONS

RECOMMENDATIONS FOLLOW-UP ACTIONS RESPONSIBILITY

Formulation and ProjectRationale

None None None

Project Implementation (i) The format of the Bank’s

follow-up mission report will require

critical review in order to generate

relevant data required for a general

overview of the project performance. It

is becoming increasing apparent that

collection and analysis of project data

are essential elements of an effective

monitoring and evaluation process, and

should therefore, be an integral part of

the project to be financed. It is

therefore, unrealistic to rely exclusively

on the MOE, since the capacity to

collect such vital statistics for the

project is presently weak.

(ii) It would also be constructive

if the Bank could regularly inform

project management on the status of

reporting guidelines including

modifications and new developments.

Upgrading the capacity in proper

project management, data collection

and analysis, reporting and loan

administration either through the Bank

internal training or in collaboration

with other local management

institutions in Namibia would be a

valuable asset to project

implementation.

(iii) The Bank should institute a

policy on the utilisation of loan

balances, placing limits on (a) the time

frame for the use of such balances

following the completion of the initial

project scope; and (ii) the number of

requests for the use of such loan

balances. It should, in addition,

streamline processes leading to the final

decision to cancel the loan.

(iv) The Bank should come up

with a policy determining when it is

appropriate to prepare the Bank’s PCR

along the continuum of project

implementation.

The Bank should regularlyreview and updatetake itsformat to ensure that itresponds to changingcircumstances.

The Bank should put inplace formal channels ofcommunication for thispurpose.

The Bank should clearlyspell these out in itsguidelines and OperationsManual.

The Bank should clearlyspell these out in itsguidelines and OperationsManual.

The Bank (POPR,ONSD).

The Bank (ONSD,POPR, ONCB).

The Bank (POPR).

The Bank(POPR).

Compliance with LoanConditions and Covenants

None. None. None.

Performance Evaluationand Project Outcome

(i) The use of resources (library,

laboratories, etc) should be closely

monitored to ensure that they

effectively promote learning.

The Government shouldassess these resourcesroutinely during sectorwork.

The Government andthe Bank (ONSD).

6

(ii) Ensure that colleges of

education are responsible for syllabi

and curricula, and their institutional

capacity in these areas is regularly

assessed.

(iii) Ensure that the climatically

dysfunctional libraries provide a

congenial learning environment by

adequately equipping them with air

conditioners;

(iv) With a view to achieving

education for all, ensure that facilities

at the colleges of education are

modified to accommodate the needs of

trainees with special needs.

Sell off the idle laundry equipment and

other items, as recommended by

supervision missions and followed up

by reminders;

The Bank should conductsector assessment missionswith a view to improvingconditions that respond tolearner needs.

The Government shouldmake adequate budgetaryallocations for the purpose.A physical facilities studyshould be conducted toensure the provision ofappropriate facilities in thelong run.

The Government shouldmake an inventory of theneeds and ensure thatappropriate actions aretaken to meet them..

The Government shouldreport to the Bank on thestatus of the equipment

The Government andthe Bank (ONSD)

The Government andthe Bank (ONSD)



Sustainability (i) Ensure that the Ministry of

Works Transport and Communications

do all maintenance-related works at the

colleges and attend to the improperly

installed water towers so that they are

in good working condition;

(ii) In the medium- and long-

terms, establish a more responsive

mechanism, such as an “Educational

Facilities Unit” to handle maintenance,

physical installation and other similar

infrastructure-related requirements at

the colleges.

The Government shouldreport on action taken tothis effect.

The Government shoulduse a comprehensivemaintenance-related needsassessment for the purposeand then develop a plan ofaction.



1

ANNEX VLIST OF DOCUMENTS CONSULTED

1. African Development Fund Appraisal Report – Basic Teacher Education Project, 1993

2. Annual Report 2003/2004 – Ministry of Basic Education Sport and CultureReform Forum Journal for Educational Reform in Namibia, No. 8, October 1998

3. Back-to-Office Report, Bank Group’s PCR Mission to Namibia, 23 October –09 November, 2004

4. Bank’s Project Files from 2001

5. Borrower’s Project Completion Report, Draft 2, Basic Teacher EducationProject, December 2000

6. Cluster Annual Report 2003 – UNESCO Windhoek Office

7. GRN/UNICEF programme of Cooperation (2002-2005)

8. Memorandum of Understanding for the Education Sector Programme inNamibia, July 2003

9. Namibia Vision 2030

10. National Poverty Reduction Action Programme 2001 –2005, December 200218. National Planning Commission

11. PIU Project File, Ministry of Basic Education, Sport and Culture

12. Questionnaire data from the three colleges – Rundu, Caprivi and Ongwediva(based on a 30-item questionnaire designed by the ADF PCR mission)

13. Summary Report on the Donor Round Table Conference on Namibia’s SecondNational Development Plan (NDP2) – 2003

14. The United Nations in Namibia – Guide on the Activities of all Un Agencies inNamibia, April 2003

15. Third Joint Annual Review Report, September 2003

16. UNICEF Girls’ Education and Development in Namibia – A Supplement to theState of the World’s Children Report 2004

17. United Nations Namibia Common Country Assessment 2004 – Government ofthe Republic of Namibia and the United Nations Systems in Namibia, 2004

18. UNDP Human Development Report, 2003 – Millennium Development Goals: A Compact AmongNations to End Poverty

ANNEX VI

BORROWER’S AND EXECUTING AGENCY’S COMMENTS ON BANK’S PROJECTCOMPLETION REPORT

1 Objectives of the project

We do agree with the report that both short-term and ultimate objectives of the Bank - i.e. toupgrade and ultimately improve the quality of the basic education sub-system – was achieved. Thisis evident in: increased enrolments at the colleges; increase in graduation of teachers and decline inteacher-learner ratios in schools. In addition there are more physical facilities that enhance or fosterteaching-learning outcomes at the colleges of education.

2. Financial administration

Omission of an Accountant and a Procurement Officer* in the Project Implementation Unit resultedin poor financial reporting and inconsistencies between the records of the Executing Agency andthe records of the Bank. Neither the Project Manager nor the National Counterpart was well versedin generally accepted accounting practice.

3. National Counterpart

Absence of clear guidelines** and a mechanism to monitor the responsibilities of the NationalCounterpart resulted in the situation where the National Counterpart did not have sufficientopportunities to gain hands-on experience from the project manager.

4. Effective utilisation of remaining loan balance

Due to factors beyond our control, like the fluctuation of the United States dollar against othercurrencies in the world, there were savings and more addenda until the Bank refused acceptingaddenda.***

5. Concluding remarks

There is need for more joint planning, review, monitoring and evaluation of the project apart fromtechnical supervision missions undertaken by the Bank.

NOTES

* At appraisal the government opted to undertake financial management and procurement. The Bank assessed the capacity ofgovernment accounting and procurement services to be adequate. However, during implementation it turned out that the governmentaccounting and procurement services were too busy to deal with the project. The Bank clearly realized the need to formulate andenforce conditionalities on implementation capacity in the future.

**The Project Manager was requested by the Bank to submit terms of reference (TOR) defining the duties of the NationalCounterpart (NC) and the relationship of the NC with the Project Manager. The Project Manager did, but the TOR were apparentlynever adhered to, in spite of the Bank’s observations in this connection.

***’The Bank advised the Project Manager to submit an addendum for all the remaining activities of the project with built-insupplementary elements that could be immediately financed in the event of savings on a given loan balance. The Project Managernever did. In addition, a project is not implemented infinitely across time just because there is a loan balance. The project hadalready become a very aging one: implementation was in its 11th year when a PCR was prepared.