world bank document · date achieved 12/30/2005 12/31/2008 06/30/2011 comments (incl. %...

Document of

The World Bank

Report No: ICR00002069

IMPLEMENTATION COMPLETION AND RESULTS REPORT

(IBRD-75960)

ON A

FIRST AND SECOND DEVELOPMENT POLICY LOANS

IN THE AMOUNT OF US$ 15.00 MILLION

TO THE

REPUBLIC OF NAMIBIA

FOR A

FIRST EDUCATION AND TRAINING SECTOR IMPROVEMENT PROGRAM

January 26, 2012

Human Development

Southern Africa 1

Africa Region

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CURRENCY EQUIVALENTS

(Exchange Rate Effective June 30, 2011)

Currency Unit = Namibia Dollar (N$)

N$6.79= US$ 1.00

FISCAL YEAR: April 1 – March 31

ABBREVIATIONS AND ACRONYMS

ABET-LLL Adult Basic Education and Training; and Life-Long Learning

ACTET Advisory Committee on Teacher Education and Training

APCI Adjusted per capita income

BETD Basic Education Teacher Diploma

BoN Bank of Namibia

CAS Country Assistance Strategy

CBET Competency Based Education and Training

CER

CIET

Country Economic Report

Centre for Innovation, Entrepreneurship and Technology

CIFA Country Integrated Fiduciary Assessment

CMA Common Monetary Area

COSDECs Community Skills Development Centers

CPD Continuous Professional Development

DPs Development Partners

DPLs Development Policy Loans

DVET Directorate of Vocational and Technical Education

EC European Commission

ECD Early Childhood Development

EMIS Education Management Information System

ETSIP Education and Training Sector Improvement Program

GDP Gross Domestic Product

GER Gross Enrolment Ratio

GRN Government of the Republic of Namibia

HAMU HIV/AIDS Management Unit

HDI Human Development Index

HIV/AIDS Human Immunodeficiency Virus/ Acquired Immunodeficiency Syndrome

HRD Human Resources Development

HRM Human Resources Management

ICT Information and Communication Technology

IMF

ISC

International Monetary Fund

Industrial Skills Committee

JAR Joint Annual Review

KBE Knowledge-Based Economy

KPIs Key Performance Indicators

LLL Life-Long Learning

MoE Ministry of Education

MoF Ministry of Finance

MGECW Ministry of Gender Equality and Child Welfare

MTEF

MTR

Medium Term Expenditure Framework

Midterm Review

NEACB National Examination, Assessment and Certification Board

NAMCOL Namibian College of Open Learning

NCHE National Council for Higher Education

NCRST National Commission on Research, Science, and Technology

NDP National Development Plan

NER Net Enrolment Ratio

NGOs Nongovernmental Organizations

NKIS National Knowledge and Innovation System

NRSTF

NSFAS

National Research, Science and Technology Fund

Namibia Students Financial Assistance Fund

NTA Namibia Training Authority

OVC Orphans and Vulnerable Children

PAD

PD

Planning and Development Directorate

Project Document

PFM Public Finance Management

PMRs Program Monitoring Reports

PoN Polytechnic of Namibia

QA Quality Assurance

RACE Regional AIDS Committees for Education

SACMEQ Southern Africa Consortium for Monitoring Education Quality

SACU Southern Africa Customs Union

SP-ETSIP Strategic Plan for Education and Training Sector Improvement Program

SRN School Register of Needs

UNAM University of Namibia

VTCs Vocational Training Centers

VET Vocational Education and Training

Vice President: Obiageli Ezekwesili

Country Director: Ruth Kagia

Sector Manager: Peter Materu

Task Team Leader: Margo Hoftijzer

ICR Team Leader: Tazeen Fasih

Republic of Namibia

First and Second Development Policy Loans in Support of the First Education and

Training Sector Improvement Program (ETSIP)

CONTENTS

Data Sheet

A. Basic Information

B. Key Dates

C. Ratings Summary

D. Sector and Theme Codes

E. Bank Staff

F. Results Framework Analysis

G. Ratings of Program Performance in ISRs

H. Restructuring

1. Program Context, Development Objectives and Design ............................................................. 1

2. Key Factors Affecting Implementation and Outcomes ............................................................... 4

3. Assessment of Outcomes ........................................................................................................... 15

4. Assessment of Risk to Development Outcome ......................................................................... 21

5. Assessment of Bank and Borrower Performance ...................................................................... 22

6. Lessons Learned ........................................................................................................................ 26

7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners ........................... 28

Annex 1: DPL Policy Matrix ......................................................................................................... 29

Annex 2: Bank Lending and Implementation Support/Supervision Processes ............................. 33

Annex 3: Beneficiary Survey Results ............................................................................................ 35

Annex 4: Stakeholder Workshop Report and Results ................................................................... 36

Annex 5: Summary of Borrower's ICR and/or Comments on Draft ICR ...................................... 37

Annex 6: Comments of Cofinanciers and Other Partners/Stakeholders ........................................ 50

Annex 7: List of Supporting Documents ....................................................................................... 51

MAP

A. Basic Information

Program 1

Country Namibia Program Name

Education and Training

Sector Improvement

Program - ETSIP

Program ID P086875 L/C/TF Number(s) IBRD-74470

ICR Date 12/22/2011 ICR Type Core ICR

Lending Instrument DPL Borrower

GOVT OF THE

REPUBLIC OF

NAMIBIA

Original Total

Commitment USD 7.50M Disbursed Amount USD 7.50M

Implementing Agencies

Ministry of Education

Cofinanciers and Other External Partners

Program 2

Country Namibia Program Name Support of ETSIP 1

DPL 2

Program ID P109333 L/C/TF Number(s) IBRD-75960

ICR Date 12/22/2011 ICR Type Core ICR

Lending Instrument DPL Borrower

GOVERNMENT OF

THE REPUBLIC OF

NAMIBIA

Original Total

Commitment USD 7.50M Disbursed Amount USD 7.50M

Implementing Agencies

Ministry of Education

Cofinanciers and Other External Partners

B. Key Dates

Education and Training Sector Improvement Program - ETSIP - P086875

Process Date Process Original Date Revised / Actual

Date(s)

Concept Review: 07/25/2005 Effectiveness: 12/20/2007 12/20/2007

Appraisal: 02/27/2007 Restructuring(s):

Approval: 05/24/2007 Mid-term Review:

Closing: 12/31/2008 12/31/2008

Support of ETSIP 1 DPL 2 - P109333

Process Date Process Original Date Revised / Actual

Date(s)

Concept Review: 04/02/2008 Effectiveness: 12/16/2010 12/16/2010

Appraisal: 09/22/2008 Restructuring(s):

Approval: 11/18/2008 Mid-term Review:

Closing: 12/31/2009 06/30/2011

C. Ratings Summary

C.1 Performance Rating by ICR

Overall Program Rating

Outcomes Moderately Satisfactory

Risk to Development Outcome Moderate

Bank Performance Moderately Unsatisfactory

Borrower Performance Moderately Satisfactory

C.2 Detailed Ratings of Bank and Borrower Performance (by ICR)

Overall Program Rating

Bank Ratings Borrower Ratings

Quality at Entry Moderately Satisfactory Government: Not Applicable

Quality of Supervision: Moderately

Unsatisfactory

Implementing

Agency/Agencies: Not Applicable

Overall Bank

Performance

Moderately

Unsatisfactory

Overall Borrower

Performance Moderately Satisfactory

C.3 Quality at Entry and Implementation Performance Indicators


Implementation

Performance Indicators

QAG Assessments

(if any) Rating:

Potential Problem

Program at any time

(Yes/No):

No Quality at Entry

(QEA) None

Problem Program at any

time (Yes/No): No

Quality of

Supervision (QSA) None

DO rating before

Closing/Inactive status Satisfactory


Implementation

Performance Indicators

QAG Assessments

(if any) Rating:

Potential Problem

Program at any time

(Yes/No):

Yes Quality at Entry

(QEA) None

Problem Program at any

time (Yes/No): No

Quality of

Supervision (QSA) None

DO rating before

Closing/Inactive status

Moderately

Satisfactory

D. Sector and Theme Codes


Original Actual

Sector Code (as % of total Bank financing)

General education sector 33 33

Primary education 12 12

Secondary education 33 33

Tertiary education 11 11

Vocational training 11 11

Theme Code (as % of total Bank financing)

Administrative and civil service reform 16 16

Education for all 33 33

Education for the knowledge economy 17 17

HIV/AIDS 17 17

Improving labor markets 17 17


Original Actual

Sector Code (as % of total Bank financing)

Adult literacy/non-formal education 5 5

Primary education 5 5

Secondary education 40 40

Tertiary education 10 10

Vocational training 40 40

Theme Code (as % of total Bank financing)

Education for all 50 50

Education for the knowledge economy 50 50

E. Bank Staff


Positions At ICR At Approval

Vice President: Obiageli Katryn Ezekwesili Hartwig Schafer

Country Director: Ruth Kagia Ritva S. Reinikka

Sector Manager: Peter Nicolas Materu Dzingai B. Mutumbuka

Task Team Leader: Margo A. Hoftijzer Mmantsetsa Marope


ICR Primary Author: Tazeen Fasih


Positions At ICR At Approval

Vice President: Obiageli Katryn Ezekwesili Obiageli Katryn Ezekwesili

Country Director: Ruth Kagia Ruth Kagia

Sector Manager: Peter Nicolas Materu Christopher J. Thomas

Task Team Leader: Margo A. Hoftijzer Mmantsetsa Marope


ICR Primary Author: Tazeen Fasih

F. Results Framework Analysis

Program Development Objectives (from Program Document) DPL2 supports the three pillars of ETSIP1 by reinforcing DPL1 efforts to develop: (i)

specific policies, legal and financing frameworks that underpin planned sector reforms;

(ii) specific systems and tools required to give effect to policies, legal and funding

frameworks intended to improve education access, equity, quality, relevance and

efficiency; (iii) specific institutional capacities that are critical for effective

implementation of planned sector reforms.

Revised Program Development Objectives (as approved by original approving authority)

Project Development Objectives were not revised.

(a) PDO Indicator(s)


Indicator Baseline

Value

Original Target

Values (from

approval

documents)

Formally

Revised

Target

Values

Actual Value

Achieved at

Completion or

Target Years

Indicator 1 :

Pro-poor and development-relevant expansion of access to post-basic

education and training.

Seven percentage point increase in grade 11 intake.

Value

(quantitative or

Qualitative)

16,977 18,208 17376

Date achieved 04/27/2007 12/31/2008 12/31/2008

Comments

(incl. %

achievement)

Indicator 2 : Proportion of new grade 11 places created in the poorest regions.

Value

(quantitative or

Qualitative)

0 percent

60 percent of new

places created in

2008 should be in

the poorest

regions.

60%

Date achieved 04/27/2007 12/31/2008 12/31/2008

Comments

(incl. %

achievement)

Indicator 3 : Percentage point increase in OVCs that successfully complete grade 12.

Value

(quantitative or

Qualitative)

0 percent

A five percentage

point increase

should be realized.

n/a

Date achieved 04/27/2007 12/31/2008 06/30/2011

Comments

(incl. %

achievement)

This information was not collected by EMIS.

Indicator 4 : Increased pre-entry enrolment in mathematics, science and ICTs.

Value

(quantitative or

Qualitative)

0 percent

150 students

enrolled: 50 in

each of the

Mathematics, ICTs

and Science pre-

entry programs.

300

Date achieved 04/27/2007 12/31/2008 12/31/2008

Comments

(incl. %

achievement)

100 students were enrolled in each Math, Science and ICTs making a total of

300 students and double the target.

Indicator 5 : 14 percentage point increase in grade 10 graduates who secure a VET place.

Value

(quantitative or

Qualitative)

3,000 3,990 21% increase

Date achieved 04/27/2007 12/31/2008 12/31/2008

Comments

(incl. %

achievement)


Indicator Baseline

Value

Original Target

Values (from

approval

documents)

Formally

Revised

Target

Values

Actual Value

Achieved at

Completion or

Target Years

Indicator 1 : Percentage point change in Grade 11 intake

Value

(quantitative or

Qualitative)

16977 7% increase 15.7%

Date achieved 12/29/2005 12/31/2008 06/30/2011

Comments

(incl. %

achievement)

enrollment in 2010 was 21054. The % increase is estimated by taking G11

intake as a percent of population age 17 (pop. projections, medium growth

scenario) and estimating the percentage change over the 5 year period.

Indicator 2 : % annual change in VET intake

Value

(quantitative or

Qualitative)

3011 14% increase 55.7%

Date achieved 12/30/2005 12/31/2008 06/30/2011

Comments

(incl. %

achievement)

Actual enrollment in 2010 was 4690

Indicator 3 : Proportion of new senior secondary education and training places created in the

poorest regions

Value

(quantitative or

Qualitative)

0 60% 60%

Date achieved 12/30/2005 12/31/2008 12/31/2008

Comments The 60% value is given in the Project Document 2008, this value could not be

(incl. %

achievement)

verified by the ICR mission since the MoE said that they do not track student

places created by level of education.

Indicator 4 : Enrollment in pre-entry: Mathematics; Physical Sciences; Biology; IDCL

(ICT); English

Value

(quantitative or

Qualitative)

0 50; 50; 50; 50; 50 106; 105; 105; 114;

106

Date achieved 12/30/2005 12/31/2008 06/30/2011

Comments

(incl. %

achievement)

Indicator 5 : % of children entering primary education with adequate levels of readiness for

grade 1

Value

(quantitative or

Qualitative)

0 20% 16.9%

Date achieved 12/30/2005 12/31/2008 06/30/2011

Comments

(incl. %

achievement)

Indicator 6 : % of budget allocation for primary and secondary books and instructional

materials (primary; secondary)

Value

(quantitative or

Qualitative)

1%; 1% 5%; 5% 1.3%; 3.1%

Date achieved 12/30/2005 12/31/2008 12/30/2010

Comments

(incl. %

achievement)

Indicator 7 : National Average SACMEQ test score (Reading; Mathematics)

Value

(quantitative or

Qualitative)

449; 431 497; 473

Date achieved 12/30/2000 12/30/2009

Comments

(incl. %

achievement)

(b) Intermediate Outcome Indicator(s)


Indicator Baseline Value

Original Target

Values (from

approval

documents)

Formally

Revised

Target Values

Actual Value

Achieved at

Completion or

Target Years

Indicator 1 :

Improved internal efficiency.

Grade 1 repetition rate.

Value

(quantitative or

Qualitative)

19.6 16 21.9%

Date achieved 04/27/2007 12/31/2008 10/31/2008

Comments

(incl. % achievement)

Indicator 2 : Grade 5 repetition rate.

Value

(quantitative or

Qualitative)

22.1 19 25.7%

Date achieved 04/27/2007 12/31/2008 10/31/2008

Comments


Indicator 3 : Grade 8 repetition rate.

Value

(quantitative or

Qualitative)

23.1 20 24.2%

Date achieved 04/27/2007 12/31/2008 10/31/2008

Comments


Indicator 4 : Average basic education repetition rate.

Value

(quantitative or

Qualitative)

15.5 14 20%

Date achieved 04/27/2007 12/31/2008 10/31/2008

Comments


Indicator 5 : Grade 10 push-out rate.

Value

(quantitative or

Qualitative)

47 40 39%

Date achieved 04/27/2007 12/31/2008 10/31/2008

Comments



Indicator Baseline Value

Original Target

Values (from

approval

documents)

Formally

Revised

Target Values

Actual Value

Achieved at

Completion or

Target Years

Indicator 1 : Repetition rate grade 1

Value

(quantitative or

Qualitative)

19.6% 16 20.2%

Date achieved 12/30/2005 12/30/2008 12/30/2010

Comments



Value

(quantitative or

Qualitative)

22.1 20 22.3

Date achieved 12/30/2005 12/30/2008 12/30/2010

Comments



Value

(quantitative or

Qualitative)

23.1 19 26.4

Date achieved 12/30/2005 12/30/2008 12/30/2010

Comments


Indicator 4 : Average basic education repetition rate.

Value

(quantitative or

Qualitative)

15.5% 15% 15.4%

Date achieved 04/27/2007 12/31/2008 06/30/2011

Comments


Indicator 5 : Grade 10 pushout rate

Value

(quantitative or

Qualitative)

47% 30% 32.6%

Date achieved 04/27/2007 12/31/2008 06/30/2011

Comments


Indicator 6 : Primary Learner Teacher Ratio

Value

(quantitative or

Qualitative)

31:1 32:1 29:1

Date achieved 04/27/2007 12/31/2008 06/30/2011

Comments


Indicator 7 : Secondary Learner Teacher Ratio

Value

(quantitative or

Qualitative)

25:1 26:1 24:1

Date achieved 04/27/2007 12/31/2008 06/30/2011

Comments


G. Ratings of Program Performance in ISRs


No. Date ISR

Archived DO IP

Actual

Disbursements

(USD millions)

1 01/28/2008 Satisfactory Satisfactory 0.00



No. Date ISR

Archived DO IP

Actual

Disbursements

(USD millions)




4 03/26/2011 Moderately Satisfactory Satisfactory 0.00

H. Restructuring (if any)

No restructuring was done for this project.

1

1. Program Context, Development Objectives and Design

1. This Implementation Completion Results Report covers the implementation of a

series of two programmatic Development Policy Loans supporting Namibia’s Education

and Training Sector Improvement Program.

1.1 Context at Appraisal

2. The centrality of education, skills development and competitiveness for the

economic growth of Namibia has been long acknowledged by the Government of the

Republic of Namibia and remains central in the policies for national development of the

country. The World Bank started supporting analytical work in the education sector in

Namibia to identify the key bottlenecks in skills formation for competitiveness of the

economy in the early 2000s. The Government of the Republic of Namibia formulated the

Education and Training Sector Improvement Program (ETSIP) with the support of the

World Bank and other Development Partners with the aim to strengthen the quality,

efficiency and effectiveness of the education and training system. ETSIP provided the

platform for comprehensive institutional and policy actions in the education and training

sector.

Background

3. Government policies and programs aiming at including previously disadvantaged

citizens in Namibia’s economic activities seemed to have a certain degree of success.

Income inequality declined: between 1993/94 and 2003/04 the proportion of poor

households1 declined from 38 to 28 percent, and the extremely poor households

2 declined

from 9 to 4 percent. Income per capita increased from US$ 2,370 (2005 est.) to

US$ 3,861 estimated in 2008.3 However, the income share held by the highest quintile

was 78.7 percent, relative to 1.4 percent for the lowest quintile (2007 est.).4 Poverty was

more pervasive in the rural northern and north eastern regions which held 52 percent of

households, 60 percent of the population, and a high proportion of female-headed

households (which tend to be worst off in terms of food poverty) (NHIES 2003-04). A

sign of deteriorating poverty was the decline in Human Development Index from 0.734 in

1966 to 0.607 in 2004, partially because of the fall in life expectancy at birth from 61 in

1991 to 41 in 2005. Also, worrisome was the high youth (aged 15 to 19) unemployment

rate, estimated to be 64.6 percent in 2004.

4. In 1998 the then President of Namibia instructed the Cabinet to propose a long-

term vision for the country’s development. The review process of the performance of the

main sectors of the economy led to the formulation of Vision 2030, which set up a

framework for long-term development. The vision of the country was one of a knowledge

1 Based on the Namibia Household Income and Expenditure Surveys (NHIES)

2 Households spending more than 80% of their income on food

3 IMF (2008) Staff report for the 2007 Article IV Consultation.

4 IMF (2008) Staff Report for the 2007 Article IV Consultation

2

based society, creating new technologies as driven by a responsive and flexible general

education and training system, supported by enabling regulatory and institutional

framework.

5. To be able to encourage the development and application of Knowledge and

Information (K&I) technologies the country needed to raise the quality of middle and

high level skilled labor. The training system needed to be flexible, sustained by an

equitable general education system of good quality and efficiency. But the productivity

growth of the country was still hampered by an acute shortage of skilled workers at

various levels of training. Namibia’s education, training and skills development sector

was not able to produce the right quality of skilled and technical labor required to

facilitate knowledge- and technology intensive production. Key impediments included

poor quality, internal and external inefficiency, inequality in the distribution of education

inputs, and limited access to secondary and vocational education.

6. The Ministry of Education requested Bank assistance in carrying out the basic

analytical work required to define a) the areas where the education system was failing to

respond to the priority actions necessary to meet the socio-economic objectives of the

Vision 2030, b) the main education issues negatively affecting the education system per

se, and c) the remedial measures to be taken. To address key education sector weaknesses

identified in the analysis, the Government developed a 15-year Strategic Plan for

Education and Training Sector Improvement Program (SP-ETSIP 2005-2020) to be

implemented in three 5-year programs (ETSIP1, 2, 3). ETSIP was developed with

substantial Bank technical support and in collaboration with 13 international DPs. A

MoU signed on June 28, 2007 outlined the partnership framework. The World Bank was

instrumental in bringing together the DPs. As early as 2005, the MoE had requested the

World Bank and the UN to convene a fund raising roundtable for the ETSIP where the

DPs were invited. Therefore, Bank technical support managed to leverage a total of

US$ 406.9 million external program funding —US$ 371.9 million in grants and US$ 35

million in loans, of which US$ 15 million was from IBRD in the form of DPL1 and

DPL2.

7. ETSIP1 was launched in 2006 with the global objectives of i) strengthening

quality, effectiveness and efficiency of the system, ii) strengthening the immediate supply

of middle to high level skilled labor and, iii) strengthening the policy, legal and

institutional set up of the system.

8. IBRD financing was delivered through two single-tranche DPLs of US$ 7.5

million each, totaling US$ 15 million for a program whose total cost was estimated as

US$ 488 million. The first DPL was approved on May 24, 2007, and the second on

November 18, 2008. DPL1 was the first lending instrument to Namibia in support of the

first implementation phase of the GRN’s sector reform program (ETSIP 1).

1.2 Original Program Development Objectives (PDO) and Key Indicators (as

approved)

3

9. The DPL1 supported the development of: (i) specific policies and policy

instruments to guide and give effect to planned sector reforms; (ii) legal instruments to

enforce policy implementation; and (iii) institutional capacities required for effective


10. DPL2 supported the three pillars of ETSIP1 by reinforcing DPL1 efforts to

develop: (i) specific policies, legal and financing frameworks that underpin planned

sector reforms; (ii) specific systems and tools required to give effect to policies, legal and

funding frameworks intended to improve education access, equity, quality, relevance and

efficiency; (iii) specific institutional capacities that are critical for effective


11. The single tranche annual series of 2 DPLs supported the above mentioned key

objectives of ETSIP1. A large number of indicators were identified as outcome/output

indicators. These are given in Appendix A. Table 2 (section 2.1 below) gives the progress

achieved during the DPL period for some of the key indicators.

1.3 Revised PDO (as approved by original approving authority) and Key Indicators,

and Reasons/Justification

12. The PDOs were not revised.

1.4 Original Policy Areas Supported by the Program (as approved)

13. Though the ETSIP1 program was subdivided into subprograms for ease of

implementation, DPL1 and DPL2 supported the three pillars of ETSIP1 by targeting five

main policy areas that were cross cutting across the sub-programs:

i. Equitable expansion of access to post-basic education and training

14. The sector improvement program, ETSIP1 planned to prioritize supply of middle-

to high-level skilled labor by expanding access to post-basic education and training. A

particular focus was underserved and poor regions of the country. This was planned

through more efficient use of existing systems of secondary education by increasing class

size to a more optimal level (no more than 35 students per class), better organized

scheduling, and extending good performing senior secondary schools. Construction of

new senior secondary schools was also planned by the government. The preparation of

DPL2 included a plan for stepping up the expansion of senior secondary school and VET

places. In addition a quota system for allocating new places for children from low income

households was piloted.

ii. Improving education quality, and equity of learning outcomes

15. The main objective under this policy was to improve the education quality and

effectiveness. The government planned specific actions at various levels of the sector.

This included revision of curricula to facilitate holistic development, articulation of

4

competencies at various levels for adequate learner readiness, teacher pre-service and in-

service training, improved assessment tools, performance targets for schools and school

management, and competency-based education and training for vocational education and

training.

iii. Eradicating inequalities in the distribution of resources

16. The overall policy outlook of ETSIP1 was pro-poor. The main objective under

this policy area was to support pro-poor expansion to access to education at all levels,

through input norms for all schools and VTCs, normative per capita financing for schools

plus conditional grants to schools that do not meet the norms; in addition, through

provision of adult education and training programs for currently neglected areas, as well

as conditional grants for orphans and vulnerable children (OVCs).

iv. Improving efficiency in resource mobilization and utilization

17. The aim was to improve efficiency of resources allocated by improving quality

(reduce internal inefficiency) and by improving learner-teacher ratio, restructuring of

teacher salaries and implementation of staffing norms in all institutions.

v. Strengthening institutional and management capacity (also described as

strengthening delivery capacity and the sector’s response to HIV/AIDS in DPL2

Project Document)

18. Strengthening delivery capacity and management in education is one of the key

policy objectives in ETSP1. The DPLs aimed to support comprehensive assessment of

capacity including lower levels of service delivery. It also aimed to support the

establishment of critical institutions vital for implementing the ETSIP1.

1.5 Revised Policy Areas (if applicable)

19. Policy areas were not revised.

1.6 Other significant changes

(in design, scope and scale, implementation arrangements and schedule, and funding

allocations)

20. MOE decided to extend the duration of Phase 1 of ETSIP by two years to align it

to the National Development Plan 3 timeframe and to the funding cycle of Development

Partners.

2. Key Factors Affecting Implementation and Outcomes

21. Implementation of the DPL series was adversely affected by delayed

disbursement of the second DPL. The first DPL was signed and disbursed per the

schedule defined during project preparation. For the second DPL, however, there was a

23 month delay prior to the signing of the loan agreement. Some apparent reasons for this

5

include concerns by the Government of the Republic of Namibia regarding the negative

pledge clause which is a standard condition of all IBRD loan agreements. The borrower

wanted to better understand the implications of the negative pledge clause for Namibia.

Secondly, legal and procurement issues delayed and ultimately prevented reaching

agreement on a fee-based service agreement (FBSA) between the Government of the

Republic of Namibia and the World Bank which was intended to be a part of the Bank’s

engagement in the sector along with the DPL. The issues around the FBSA were raised

during negotiations of the second DPL and continued to be discussed between the GRN

and the World Bank until signing of the loan. For Namibia as a country borrowing for the

first time from the World Bank, lack of familiarity with World Bank operational

procedures appears to have contributed to misunderstandings and perhaps a lack of trust.

At the same time, the lack of a permanent World Bank presence in Namibia made it more

difficult to resolve misunderstandings that arose during the period. Consequently, over a

period of 23 months a number of meetings were held between the officials from Namibia

the World Bank Education team and the legal team from the World Bank. Eventually, an

internal agreement was reached within the Government of the Republic of Namibia upon

which the legal agreement was signed on Sept. 17, 2010. While Government

implementation of ETSIP continued throughout this period, in the absence of the FBSA

the Bank team was not able to provide the expected level of technical support for ETSIP

implementation.

2.1 Program Performance (supported by a table derived from a policy matrix)

22. Overall the ETSIP1 program which was supported by the two DPLs from the

World Bank along with 13 donor partners and the Government of the Republic of

Namibia has achieved some moderate progress. The achievements are more evident in i)

adoption of new policies, ii) creation of new bodies, to rationalize sectors and improve

their efficiencies, iii) curricula development, to introduce new subjects and take into

account new educational learning profiles, iv) training activities, in view of the revised

curricula, to comply with the needs to upgrade the knowledge level of school

administrators, teachers and supervisors, and to raise awareness on some important topics,

v) studies, leading to new actions, improved external efficiency, and better assessment of

existing programs and, vi) provision of teaching/learning materials, advocacy materials,

construction of schools, and various equipment. When looking at the progress across sub-

sectors in the program from 2006 to 2011, some attained most of their objectives (e.g.

ECD/PPE), some others lagged behind (e.g. CD). Achievements addressed, in various

measures, quality and access, but seem to have had a lesser impact on equity and

efficiency.

23. In terms of the specific policy areas under ETSIP1 that were supported by the two

DPLs, significant progress was seen during the first DPL. In particular, the first DPL and

the analytical work that preceded it developed a strong momentum around the need for

reforms. Within the first year of the DPL a number of policy reforms and cabinet

approvals had already been initiated. These included cabinet approvals for policy to

6

introduce grade 5 and 7 standardized diagnostic tests5, sector specific ICT policy, sector

specific HIV/AIDS policy, VET bill and legislation on the National Council for Higher

Education. Improvements in enrolments in VET institutions as well as Grade 11 intake

were seen as well.

24. The prior actions and triggers for DPL2 were completed on time as well.

Additionally, some progress was also seen on the equity of provision of education and

training. Almost 60% of the new secondary school places were created in the

disadvantaged regions, enrollment in VET was increased for the students from the 7

disadvantaged regions of the country and the country had started a process for

introducing per capita financing for both equity and efficiency in the education system.

Private schools were being provided subsidies based on a separate formula worked out

for private schools. However, for public schools, the formula was approved but has not

yet been implemented.

25. During the 23 months period when the loan was approved by the World Bank

Board of Governors and the signing of the loan, progress in ETSIP1 continued with GRN

funding and support of some development partners and contributions from the Namibian

private sector.

26. As mentioned above, in some areas of reforms the progress was much faster than

in others. But the pace of the reform, overall, appears to have reduced slightly compared

to the first year of the DPL. However, this can be attributed to the fact that the period of

the first DPL was associated with introduction of new policies legislations and bills and

with cabinet and Parliament approvals of these. Since the political will was strong at the

time, these policies were formulated and adopted relatively quickly. The implementation

process however, took much longer than anticipated. This might also be attributed to the

non operationalization of systems meant to bring about expected quality and equity

changes.

Table 1: Prior Actions and Triggers for the two DPLs

Policy area DPL1 Status

Equitable

expansion of

access to post-

basic education

and training

Adoption of action plan that enables a 7

percentage point increase in G11 intake

Completed

Agreed and feasible plan for increasing

university intake in pre-entry maths. science,

and ICT programs

Completed

Improvement of

education quality

and effectiveness

Cabinet approval of policy to introduce

standardized diagnostic tests for G5 and G7

Completed

Adoption of plan to enable a 5 percentage

point increase in budget allocation for primary

and secondary school books and instructional

Completed

5 Initially intended for grades 5 and 8.

7

materials

Cabinet approval of a sector ICT policy Completed

Eradication of

inequalities in

distribution of

education

resource inputs

MOE agreement to introduce a policy on per

capita funding for primary and secondary

schools

Approved by Cabinet

in Sept 2008

Improved

efficiency in

resource

mobilization and

utilization

Agreed operational plan for reducing

repetition, drop-outs, push-outs and for

increasing LTR in general education

Completed

Strengthen

delivery capacity

and response to

HIV/AIDS

Cabinet approval of a sector policy on

HIV/AIDS

Completed

Cabinet approval of the new VET Bill to

allow for the establishment of NTA

Completed

Adoption of legislation for the establishment

of NCHE and its secretariat

Completed

Cabinet approval of transfer of PP education

from MGECW to MOE

Completed

DPL2 Status

Equitable

expansion of

access to post-

basic education

and training

Commencement of pre-entry programs

On 24 March, 2008, delivered by NAMCOL

at the Windhoek and Ongwediwa campuses

Completed

Improvement of

education quality

and effectiveness

Approval of revised lower primary curriculum

by NAECB and implementation by schools

Completed

Cabinet approval of textbook policy Completed

Assignment of performance targets for each

school

Completed

Eradication of

inequalities in

distribution of

education

resource inputs

Establishment and maintenance of a school

register of needs

In progress

A new formula for determining applicable

levels of subsidies to private schools approved

by the Cabinet and the Cabinet approves the

phased withdrawal of current subsidies

Completed

Improved

efficiency in

resource

mobilization and

utilization

Teacher salary increments de-linked from

unnecessary and irrelevant qualifications and

linked to their performance

Completed (incentive

now in the form of

once off bonus rather

than salary

increments)

27. Details of the progress made under each pillar are given below:

Policy Area 1: Equitable expansion of access to post-basic education and training

8

28. The equity issues in post basic education enrollment had started to be addressed

very early in the life of the DPL series. During the first year of the program a total of 100

new classrooms and one secondary school were constructed, thereby significantly

increasing new places for students. Based on the action plan adopted under DPL1, the

government ensured that 60% of all new places were created in 7 most disadvantaged

regions of the country. The number of orphans and vulnerable children (OVCs) enrolled

in secondary education increased. As of 2010, 22.4% of all students in grade 1-12 were

OVCs.

29. The quota system for allocation of new places to children of low income

households was piloted in 2008. For now this is operating as a public-private partnership

process. The private schools receive subsidies from the government, provided they have

at least 10% of their total enrollment as OVCs. These schools face a penalty if OVC

enrollment is less than 10%. However, there is no systematic monitoring of the condition.

Certain private institutions provide scholarships to low income household children.

Additionally, quota system for distributing Grade 11 places has also been introduced and

is in place. However, it has been felt that the relocating of students in such cases

sometimes creates extra financial burden for the low income families.

30. To increase access to enrollment in vocational training centers (VTC), the MoE

had planned to “buy” 2000 training places per year. However, this intervention did not

take place due to lack of funding. At the same time, construction of 4 Community Skills

Development Centers (COSDECs) was delayed. Construction of the COSDECs is now

underway, with support from Millennium Challenge Account (MCA).6

31. An important action intended under the DPL was the attempt to boost quality

output in science, mathematics and ICT. The establishment of six secondary magnet

(vision) schools in the poorest regions of the country was hoped to help attain this goal.

This action was delayed substantially, first to establish the feasibility of such an

investment. The construction of one such magnet school (now called Vision schools) has

started in the Kavango region and is expected to be completed in 2013. The reason given

for only one school being built was lack of funding. Also, the concept has evolved over

time suggesting that some existing schools could become vision schools. MOE has

indicated it will take over funding of any future vision schools which suggests that no

further funding from ETSIP will be needed.

32. In order to improve student readiness at entry, tertiary pre-entry programs were to

be started for ICT, science and mathematics. The initial target was 50 students in each

program. The enrollment was already at 100 students by the end of DPL1. These are

offered by Namibia College of Open Learning in two campuses: Windhoek and Oshakati

(Oshana).

Policy Area 2: Improvement of education quality and effectiveness

6 One of the Development Partners supporting ETSIP1.

9

33. A number of actions were envisioned under this policy area for all subsectors of

the education system.

34. A major achievement under this area is the policy to introduce standardized

assessment tests for grade 5 and grade 7 (initially proposed for grade 8).7 This has been

fully achieved and implemented, where the assessment for grade 5 has been completed

and for grade 7 was undertaken in 2010. It is planned that the testing will be done for

each grade in alternate years. A specific division under the Directorate of National

Assessments and Examination has been created that is responsible for these assessments.

35. The Government of the Republic of Namibia started re-orienting the education

and training towards a competency based system under ETSIP1. The National Institute

for Educational Development (NIED) defined competencies that reflect school readiness

for pre-primary education; lower and upper primary curriculum was revised on a similar

basis and the new curriculum was approved by the National Examination Assessment

Certification Board; and secondary education curriculum was also revised.

36. Competency Based Education and Training (CBET) was also introduced in

Vocational Training Centers. The Zambesi VTC was the first to introduce this approach.

The learners and trainers found it difficult to understand the concept of CBET and held

strikes to resist the implementation. However, the National Training Authority (NTA)

held a number of meetings to clarify the value of such an approach and now the model is

operating smoothly.

37. A number of other actions were also taken under this pillar. These include,

approval of ICT specific policy; provision of ICT equipment to 245 schools, 5 VTCs, 4

colleges of Education, 23 Teacher Resource Centers, 29 libraries and community centers

and 13 COSDECS; mainstreaming of ICT in grade 8-12 mathematics, science and

English curricula; and classroom support for the ICT teachers. All these measures have

been aimed at improving the learning of students at various levels of education.

38. For Early Childhood Development (ECD), a policy was approved by the cabinet

in March 2008. ECD curriculum has been developed, and training of ECD staff was

undertaken, with exposure to international experiences including Malaysia and South

Africa. One shortcoming, though, has been the delay in development of the Namibian

Holistic Index of Child Development. And being dependent on the HICD, establishment

of the system of competences and professional standards for ECD is still pending. Key

reason for this is the lack of consensus of what constitutes the HICD.

39. An important action under the pillar was the phased increase of 5% of the budget

share for books and instructional materials relative to teacher salaries. The action was

7 This activity was to a large extent supported by USAID

10

adopted in 2006, however, the target of 5% has still not been reached and remains at

1.3% for primary education. At the secondary education level, the target is much closer to

being achieved at 3.1% in 2009/2010.

40. The government under the Vocational Training Act (discussed in policy area 4

below) introduced a number of actions to improve the quality of technical and vocational

education which included both the improvement in facilities and equipment as well as

instructor training.

41. Despite these actions for improving the quality of education, the results appear to

be disappointing. The grade 8 repetition rate in 2010 has increased slightly over the 2008

rate at 26.4%. Similarly, the repetition rate for grade 1 and 5 remain much higher than the

proposed targets (Table 2). The issue of quality of education remains a concern to both

the Development Partners as well as the Minister of Education. Although, with a rapid

increase in enrollment in upper grades, the average quality is expected to reduce given

the enrollment of the more marginalized students, it was however, anticipated that the

comprehensive nature of ETSIP will counter any such problem

Policy Area 3: Eradication of inequalities in distribution of education resource inputs

42. Some of the actions mentioned under the preceding two pillars also contribute

towards the objectives of this pillar. Additionally, introduction of pro-poor pre-primary

education has been attempted with first 100 pre-primary classrooms being started in the

underprivileged regions.

43. A school register of needs is being established under the program to monitor the

supply of inputs in the schools – though the process has been stalled for some time. Once

developed, it will be used to establish the norms of school inputs. This activity has not been

completed given its dependence on the school register of needs.

44. There is one action that has not been implemented yet, that is the per capita funding

formula for primary and secondary education. At the time of DPL1 the government had

agreed to apply a new formula and initiated the necessary analytical work. At present

difficulties arise in choosing a formula mainly due to the population data that are a decade

old. Also, the calculation of unit costs is not finalized yet. There are also some issues of

compensation to regions and the per-capita funding formula has not been adopted but not

yet implemented.

45. For FY 2009/2010 the recurrent budget has been transferred to the regions

excluding the funds for salaries, which will be still paid centrally. In terms of capital budget

a per capita formula is in use for two components namely maintenance and nationwide

renovation (of schools and hostels).

46. Similarly, the funding formula for Vocational Education and Training (VET) has

not been revised yet and the old system, which appears to be flawed, is still being used. For

both VET and TET funding formulas, analytical work is underway, but the decision

11

making process is taking longer than anticipated. A payroll levy for firms and industries to

contribute to the cost of training is being developed as well. The design is well advanced

and will be introduced soon. Sector Skills Committees are aware of and in agreement with

the concept of a training levy for cost sharing.

Policy Area 4: Improved efficiency in resource mobilization and utilization

47. Government of the Republic of Namibia invested approximately 9% of GDP in

education till the early 2000s. The proportion of spending on education was reduced

gradually and reached 6.7% during mid-2000s. Given the push for expansion of post-

secondary education and training the allocation was again increased and it stood at almost

8% in 2008. Additionally, the support from the DPs for ETSIP also increased. However,

the aim has been to reduce education expenditure once the basic infrastructure and other

key inputs have been made. The current total education expenditure stands at 8.7% of

GDP.8

48. Improving learner-teacher ratio was planned to improve efficiency in the system.

The MoE had to hold discussions with the teachers union to be able to agree on a higher

LTR. However, the current value suggests that the learner teacher ratio has actually

decreased over time. It is not clear whether this is a result of pressure from the teacher

unions or not.

49. Similarly, the attempts to reduce grade 8 repetition rates and grade 10 push out rates

did not bear fruit, and the current values are even higher than the base values at 26.4 and

32.6 percent respectively (Table 2). These results reflect the inability of the reforms to

improve the standards for the lowest performers, and the internal efficiency of the system

remains low.

50. In terms of standardized assessments to monitor quality of education, percentage of

learners attaining D grade or better both in grade 10 and 12 examination for Mathematics,

Science and English improved over time as did the regional assessment SAQMEQ results

(Table 2 gives targets and achievements of the key outcome indicators).

Policy Area 5: Strengthening delivery capacity and the sector’s response to HIV/AIDS

51. In order to tackle the challenge of HIV/AIDS in the education sector, HIV/AIDs

Management Unit (HAMU) was set up in the Ministry of Education. In addition, Regional

AIDS Committees for Education were strengthened and supported. Through HAMU, the

mainstreaming of HIV/AIDS issues was intended to be addressed in all areas of the

education system, including the curriculum, teacher training, learning materials and

management competencies. Though progress in life skills studies, teacher training and

OVCs access to education is seen, the progress is hard to quantify due to a lack of proper

8 Estimates provided by GRN, MoE officials.

12

monitoring under HAMUs. This indicates lack of proper monitoring and evaluation

structures.

52. In terms of strengthening service delivery for the various subsectors as one of the

objectives of this policy area, progress and achievements have been mixed. A number of

policies and Bills were passed to create an institutional setup for smooth achievement of the

main objectives under ETSIP. For instance, pre-primary education was taken away from

Ministry of Gender Equity and Child Welfare and placed under the Ministry of Education.

National Counsel for Higher Education (NCHE) was established and a National Training

Authority was set up.

53. The establishment of the various agencies/authorities did not jump start the process

of change and rapid progress. As new entities, the evolution and establishment of the

operational structures of these took a lot more time than anticipated. For instance, it took

almost 3 years to appoint the CEO for the NTA. Throughout, this period, the NTA was

understaffed and absence of the CEO meant that no decisions on staffing could take place.

Similarly, for the NCHE, the Strategic Plan for HEIs was prepared by TA, but was

considered unsatisfactory. So now, a new consultant is to be recruited for the process.

NCHE is also preparing an amendment to the NCHE Bill in view of transforming the

Council into an independent body (thus receiving funds directly from Parliament). In terms

of capacity building for the NCHE, the preparation of guidelines for staff development is

still pending.

54. Within the Ministry of Education, a draft organizational restructuring plan entailing

required staff and resources has been developed and the draft is going through the review

process. Decisions are still pending, in particular as this links to the overall decentralization

policy of the GRN.

55. Many other capacity development activities were envisaged for the MoE staff, but

were not completed. For instance, as an initial step, assessment of the system’s capacity to

implement reforms was planned but not undertaken; a capacity development program was

not articulated; strengthening of procurement and financial management capacity did not

take place; the core ETSIP team was intended to be trained in Integrated Financial

Management and Information Systems (IFMIS) which did not take place; and the training

of the management staff in effective leadership was not conducted.

56. Consequently, the capacity development area of ETSIP1 supported by the two

DPLs was not successfully implemented which had negative consequences on the overall

performance of the program.

13

Table 2: Baseline and Achievements of Key Indicators for ETSIP1

Base year 2005-06 2011

Percentage point change in Grade

11 intake

16,977 15.7

Percentage of OVCs enrolled in

grade 1-129

N/A 22.4

Percentage annual change in VET

intake

3011 55%

Enrolment in pre-entry:

Mathematics 0 106

Physical Science 0 105

Biology 0 105

IDCL (ICTs) 0 114

Percentage of learners who complete

lower primary with core skills and

competency

20% 42.5%

Repetition rate grade 1 19.6% 20.2%



Average repetition rate for basic ed

(1-11)

15.5% 15.4%

Grade 10 pushout rate 37% 32.6%

Primary LTR 31:1 29:1

Secondary LTR 25:1 24:1

2.2 Major Factors Affecting Implementation:

57. The ETSIP1 program has been a flagship of the Ministry of Education in Namibia

supported by 13 development partners (DPs) including the World Bank. As such, it has

proved to be sustainable over time. This report identified certain shortcomings in the

implementation of the program that could be attributed to the non-provision of certain

expertise associated with the activities under DPL2. It appears that the construction of the

magnet schools and the capacity development component of the program were negatively

affected by the absence of the World Bank. The capacity development subprogram, that

should have been a cross-cutting program, was not developed as such. The DPL2 clearly

supported CD as one of the policy areas and it is highly likely that it would have been

pushed forward had the loan been signed on time. The lack of expertise to implement the

CD sub-program also negatively impacted the implementation of the program as a whole.

58. In the general two key factors affected implementation and the achievement of

some outputs of ETSIP1: a) frequent changes in the coordination and management of the

program and, b) the absence of a structured M&E system at both the central level of the

9 The original indicator was percentage of OVCs who successfully complete senior secondary education.

MoE informed the ICR mission that this number is not collected. The individual performance of OVCs is not followed.

14

MOE and within the sub-programs. We discuss the issue of implementation here and

M&E in section 2.3 below.

59. The overall coordination of ETSIP was initially entrusted to the Undersecretary of

Non Formal Education. The Undersecretary adopted a tight management approach, with

strict monitoring of the implementation plans drawn by the managers of the sub-programs.

This approach was deemed necessary for a timely start of a complex program like ETSIP.

In December 2008 the Undersecretary left his post. Between that date and June 2009 the

program was coordinated by the Deputy PS on an interim basis.

60. In June 2009 the Undersecretary of Formal Education was appointed the new

coordinator. The new coordinator adopted more of a decentralized approach to program

management where responsibilities were shifted to the coordinators of the various sub-

programs. Probably this move reflected the emerging education decentralization policy

being adopted by the MOE. However, in retrospect, it appears that the program was not

ready for the shift in management style. Some management issues already present in the

structure were exacerbated. Issues emerged in areas such as planning, program

monitoring, overall management, and budgeting/funding. More specifically (i) sub-

programs managers did not receive clear TOR concerning their responsibilities, authority

and expected outputs; (ii) no internal regular review of the program was conducted; (iii)

sub-programs were considered as separate: regular meetings between sub-programs

managers were not held which would have helped in discussing common issues and

overall implementation of ETSIP.

61. The presence of the World Bank technical assistance during this period might

have helped alleviate some of these issues since the World Bank loan had been designed

to support policy areas which cut across the subsectors, in particular supporting capacity

development. A regular presence of the Bank technical expertise for implementation

support missions, during the second and third year of implementation of ETSIP might

have encouraged cross-sub-program dialogue.

2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization:

62. The implementation structure originally conceived under ETSIP and supported by

the DPLs was appropriate. The coordinator of the program had a proper authoritative

position in the Ministry of Education to coordinate activities within the Ministry and

liaise with outside stakeholders including other Ministries and DPs. However, during

initial years of ETSIP1 the M&E function was generally disregarded. MOE did not set up

a formal structure, no structure existed at the regional level, and the managers of the sub-

programs did not set up a structure for their area of activities. As a result, process and

implementation monitoring has been weak. The EMIS did not include certain indicators

required by sub-programs such as ECD and HIV/AIDS. The sub-programs did not set up

their own internal indicators because of non-existent internal M&E structure despite

being envisaged under the program. As such, the evaluation of certain outcomes could

not take place (such as the effectiveness of teachers’ in-service training programs, and the

assessment of education achievements as a result of changes in curricula). The absence of

15

a M&E system and structure is an important flaw in the ETSIP program and is currently

being highlighted in the mid-term review of ETSIP1.

2.4 Expected Next Phase/Follow-up Operation (if any):

63. ETSIP1 is ongoing. During an implementation support for DPL2, the World Bank

team was requested by the Minister of Education to conduct a mid-term review of the

ETSIP1 and recommend concrete suggestions for the way forward. The World Bank

invited the DPs mainly, EU, MCC, UNICEF and UNESCO, to be a partner in this

exercise given the key role played by them in ETSIP1. The mid-term review has recently

been completed and discussed with the MoE. Related findings of the review are also

reflected in this ICR. The World Bank team has seen interest from the MoE in engaging

their technical assistance in moving ETSIP1 forward, but the modalities of this

engagement have not been defined. Given the issues in the last DPL series, the team has

decided support short and targeted TA if requested (such as leading the mid-term review

process as mentioned above).

64. Here it needs to be mentioned that the PD for DPL2 mentions that “Beyond the

DPLs, the Bank support will be sustained through a fee-for-service arrangement in the

amount of US$ 2 million to be used over the program duration as reflected in a MOU”.

An Agreement for Advisory Services was drafted in 200810

, but the agreement was not

signed because the Government objected to: a) the clause of paragraph 8 stating that all

the documents produced under the agreement could not be widely distributed without the

consent of the World Bank, b) the requirement that all services and consultants were to be

exempted from local taxes and, c) the fact that it was not to participate in the selection of

consultants.

3. Assessment of Outcomes

65. A number of positive outcomes have been achieved, for instance, important

policy measures have been adopted, new bodies have been created that will allow an

expansion of the supply of relevantly trained post-secondary graduates, curricula have

been revised, ICT has been incorporated into general education, VET and teacher

development curricula is developed, the system’s response to HIV/AIDS is being

strengthened.

66. But there have been some shortcomings as well. Due to the non performance of

capacity development activities, the objective of improving capacity at central and

decentralized levels, and the functional review of MOE to take into account the ongoing

decentralization process, have not taken place, despite urgent needs. Also, the key

objective of improving internal efficiency in general education has not seen the

anticipated results.

10 Agreement for Advisory Services. Draft (not for signing) October 25, 2008

16

3.1 Relevance of Objectives, Design and Implementation (to current country and global priorities, and Bank assistance strategy)

67. The objectives of the ETSIP program, which is was supported by the two DPLs,

were and still are very relevant to the needs of the Namibian economy. The essence of

ETSIP 1 was to contribute to the attainment of the national objectives contained in the

Vision 2030 and in the National Development Plans, and to address the main weaknesses

of the education system.

68. Mid-term review of the ETSIP1 program was recently completed by the DPs and

the MoE. The strategic objectives of the initial ETSIP were still endorsed and still remain

relevant; thus indicating the relevance of the DPLs to the current country and global

priorities. However, it was indicated that till now ETSIP1 had given lower priority to

laying the foundations of the system. Thus, a slight change in strategic direction for the

government moving forward is the increased emphasis on primary and secondary

education and monitoring and evaluation of the system.

69. The Development Policy Operation covered all sectors from ECD to tertiary

education. This is appropriate for a policy operation. A large number of outcome/output

indicators were identified in the policy matrix as the result indicators. The DPL1 Project

Document provides as a policy matrix with Outcome/Output Indicators for the base year

and for the years 2007/08 and 2008/09. The DPL2 Project Document includes an

expanded Policy Matrix providing target indicators for the years 2006/07, 2007/08 and

2012/13.

70. A number of the indicators used for the DPL policy matrix appear to have been

created specifically to monitor the effect of certain policies. Some information was

initially collected and progress was reported in the annual review meetings. However,

follow-up proved impossible because once it was understood what the indicators actually

meant, it was realized that the indicators cannot be collected the way originally planned

on paper. Thus the follow-up on these indicators for DPL2 and eventually for the ICR

after a 2 year gap proved impossible as no government official was able to provide

information on those specific indicators.

71. The implementation structure supported by the DPLs, as originally conceived,

was appropriate. The coordinator/manager of the program belonged to the high

hierarchical structure of the Ministry, thus had proper authority to coordinate activities

within MOE, and to liaise with other ministries, DPs and the Bank. Also, each sub-

program had a designated manager, reporting to the program coordinator for all matters

relating to ETSIP. The central idea in designing the implementation structure was to

avoid the creation of a structure additional to the existing one within MOE. Various MOE

departments/units (such as Planning and Administration, General Services, Accounting)

were to collaborate in project implementation, by assuming responsibility for specific

activities. This collaborative approach to implementation was a sound one, and was in

line with Bank directives.

3.2 Achievement of Program Development Objectives

17

72. The key development objectives of the DPLs were (i) specific policies and policy

instruments to guide and give effect to planned sector reforms; (ii) legal instruments to

enforce policy implementation; and (iii) institutional capacities required for effective


Table 3: Actions supporting key PDOs

Activity Status Comments

Specific policies and policy instruments to guide and give effect to planned sector reforms Quota system for

distributing G 11 places

Is being applied Intended for students from low

income families.

Quota system for

allocating places to low

income children

Has been piloted. Private institutions

offer scholarships.

For the moment the system is based

on a public-private partnership, with

private funds.

Policy to introduce G5

and G8 standardized

diagnostic testing

Approved by Cabinet Fully developed

and running. Change to G7 instead of

G8 was made in 2008

G5 standardized test completed in

2009. G7 testing conducted in 2010.

A plan for a phased 5%

increase of the budget

share of books and

instructional materials,

relative to salaries

Was adopted in 2006

Gradual increase is taking place

Adoption of policy on

per-capita financing

Final formula not ready yet. There are

different proposals.

Difficulty arises from the fact that

population data are a decade old.

Restructure teachers’

salary scales

Done as part of re-grading of teachers

adopted in 2006

Job evaluation and grading is still on-

going

Develop a sector policy

for HIV/AIDS

Done. Cabinet Decision No.

13th/20.05.03/002

Revise overall national

education policy

Education Conference in June 2011 to

provide inputs.

Conference took place

Plan to establish

conditional grants for

OVCs

The Education Sector Policy for OVCs

was approved in 2008

Rules of the EDF were issued in 2008

Started in FY 2007/08. In 2008/09

allocated 2.1 million but they could

not be transferred to the EDF until the

EDF is appropriated by Parliament

Government subsidies to

private schools

conditioned on level of

participation of low

income students

By Cabinet Decision 17th/16.09.08/010

the formula was approved

All private schools, but two, have

applied for subsidies.

Incentive system to attract

teachers of scarce skills to

rural areas

Approved by the PS on April 1st, 2009.

Implemented in FY 2010/11

Task Force Report adopted by MOE

and NANTU

MOE considering the setting up of a

national rewards system

NIECD policy

implementation plan

Had been approved in 2008; launched

in 2009; in 2010 translated in seven

18

languages

Merging of Teacher

Training Colleges into

UNAM

Done

Cabinet Decision 1 April 2010

A study on teachers demand was

carried out and was the basis for the

decision to transfer the TT colleges to

UNAM

Legal instruments to enforce policy implementation Vocational Training Act Done.

Act No. 1 of 2008; Became operational

on 2 June 2008

Establishes the NTA, and the national

Training Fund (NTF)

Establishment of NTA Done, see above

Establishment of NCHE Established in 2003 by Act No. 26.

Transfer of pre-primary

education to MOE

Done.

Cabinet Resolution 20th/07.11.06/010

Devolution of authority

to VTCs

Was piloted in 2008 at the Zambesi

VTC. Now under consideration by NTA

for final policy

Institutional capacities required for effective implementation of planned sector reforms Establish a section in

DNEA for national

assessment for Grade 5

and 7

Decision of Public Service Commission

Ref. 14/2/3/5 (2007/126) 2008-05-14

OPM- May 2008.Memo to Secretary and

to Cabinet 16/05/2008

Undersecretary Public Service

Management 02/06/2008 Secretary to

Cabinet

Development of an

expansion plan for sr.

secondary education and

training

Government adopted an action plan to

enable 7 percentage points increase in

G11 intake, 14% point increase in G 10

graduates who secure a VET place

Expansion of intake in

pre-entry tertiary

education and training

programs

Government adopted an action plan to

commence pre-entry programs in tertiary

mathematics, science and ICT

Establishment of fund to

promote research in

science and technology

Regulations are ready, waiting for

Cabinet approval

Establishment of unit

within MOE dedicated

to resource

mobilization, strategic

deployment and

efficient utilization

Unit per se was not created because the

functions are spread within MOE

Articulation of a

capacity development

program

Did not take place because the CD sub-

program did not meet its objectives

Undertake a

comprehensive

assessment of capacity

to deliver education and

training services in the

Did not take place. See above

19

medium to long term

Strengthen procurement

and financial

management capacity

Procurement Unit is not operating

Execute a training plan

for procurement staff

Staff was trained

Core

ETSIP1implementation

team to be trained in

IFMIS

Not done

Management staff to be

trained in effective

leadership

Not done

Establishment of CIET Can be established after the NCRST is

operational

Establishment of

NRSTF

National Commission on RST to be

established.

Regulations completed, need to be

gazetted.

HR manual completed in 2008.

Financial Manual finalized in 2009

EMIS modules for VET Fully developed by NTA The modules belong to NTA and are

fully compatible with EMIS

73. As discussed in detail in section 2.1 above, the World Bank support in the initial

period of the program was instrumental in supporting specific policies and policy

instruments to guide the reforms. The presence of 13 DPs and MoU signed between the

DPs with GRN to support ETSIP1 gave a strong signal of the importance of these

reforms to the government. As a result the political will was strong and a number of

policies and legal instruments were either signed or approved without much delay.

Therefore objectives 1 and 2 appear to have been achieved to a satisfactory extent,

despite delay in adoption of a few policies, such as the VET Act among others. This is

reflected in Table 2 above.

74. With regards to the third objective, the achievement is more mixed. The

development of institutional capacity was planned at various levels. Some of these

activities did take place, for instance, procurement staff were trained, but the full extent

of the planned CD activities did not materialize. Although complete attribution is not

possible due to nature of the lending instrument used by the World Bank to support

ETSIP, it is likely the absence of the World Bank as an active DP for almost 2 years

could have contributed to this. Most of the capacity building components in ETSIP were

strongly supported by the World Bank and could have been impacted by the loss of a key

supporter of these activities.

20

3.3 Justification of Overall Outcome Rating (combining relevance, achievement of PDOs)

Rating: Moderately Satisfactory

75. The program performance has been good in certain areas, for instance, rapid

progress was seen in policy areas 1 and 3. Policies, acts and cabinet decisions were made

to support pro-poor expansion of post-basic education, both for general secondary as well

as TVET education. The number of learners enrolled at senior secondary level increased,

the enrollment rate for OVCs increased, programs for improving quality of education at

pre-tertiary entry level were introduced and implemented, curriculum was revised at all

levels to make it a competency based approach and pre-primary education was extended

in the previously disadvantaged regions of the country. But certain actions under policy

areas 2, 4 and 5 did not quite achieve the desired outcomes. This includes the failure to

reduce repetition rates at various levels of school, though the achievement in SACMEQ

improved over time. One major shortcoming is the delay in CD programs.

76. In spite of the absence of specific PDO indicators, the assessment of

achievements is established on strong evidence based on the benchmarks and indicators

which are in-built in the DPLs. Data shows that 83% (65 out of 78) of the main activities

supported under the DPLs were completed, the overall outcome rating is justified as

Moderately Satisfactory.

3.4 Overarching Themes, Other Outcomes and Impacts (if any, where not previously covered or to amplify discussion above)

(a) Poverty Impacts, Gender Aspects, and Social Development

77. The two DPLs have supported pro-poor reforms and activities, but the impact on

equity issues has been moderate. The expansion of ECD/PPE, the expansion of access to

secondary education (giving priority to under-represented regions), and of

VTC/COSDEC facilities, the provision of incentives to teachers in remote areas (intended

to increase their retention), the equitable distribution of textbooks with an increased

textbook/learner ratio, the quota system for distributing G11 places, intended for students

from low income families, the quota system for allocating places to low income children,

the approval of the Education Sector Policy for OVCs are some of the most important

activities of ETSIP that have had some positive impact on poverty, but challenges remain.

The DPLs focused on OVCs by assisting the creation of an Education Development Fund

(EDF) at secondary level for OVCs, on setting up conditional grants for OVCs, and an

OVC register. However, in terms of follow-up and impact, the EDF is no longer

operational and the debate is around abolishing users’ fee in education. The OVC register

has not been successfully used for orientation of policy or planning. Thus, though the

OVCs are gaining access to ECD, pre-primary, and secondary education, the overall

improvement in access is moderate at best.

21

78. In Namibia there is no gender disparity in enrollments: in primary education ratio

of boys and girls is equal, and at secondary level females are over-represented. Thus, the

DPLs did not focus on gender issues in terms of access to education services.

79. In terms of equity and resource allocations, great disparities still exist among

regions: rural schools receive fewer resources than urban schools, have higher

percentage of unqualified teachers (particularly teachers not trained in the subject they

are supposed to teach), and have lower representation indexes relating to enrollment.11

Also the school feeding program (not supported by the DPLs) does not reach the poorest

children, mainly due to their remote locations. Not enough attention was paid by the two

DPLs on substantive actions to address regional inequalities (in terms of quality inputs

and adequate financing), apart from the support provided to expand access to secondary

education (though not comprehensively) and to vocational education.

(b) Institutional Change/Strengthening

(particularly with reference to impacts on longer-term capacity and institutional development)

80. The DPLs have sown the seeds for institutional strengthening. Following

achievements of Phase 1, all supported by the DPLs, will result in positive institutional

changes and/or strengthening:

The assignment of performance targets for each school, resulting in better

management and quality outputs,

The devolution of authority to VTCs, together with the new organizational

structure and conditions of service for VTCs, resulting in an improved, more

efficient management of these institutions.

The creation of the NCHE which is expected to improve the relationships between

the tertiary sector and the labor market (external efficiency)

The study on a functional structure of the MOE, taking into account the

decentralization, and the MTR proposal to initiate a capacity development

program at both central and decentralized levels, if at least initiated during the

remaining two years of Phase 1 implementation, will have a noticeable and

sustained positive impact on the effectiveness and efficiency of the MOE.

3.5 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops (optional for Core ICR, required for ILI, details in annexes)

4. Assessment of Risk to Development Outcome

Rating: Moderate 81. Many of the achievements of the first five years of ETSIP 1, supported by the

DPLs, as described in the previous sections of this report, are still fragile:

i) Some actions are not yet totally embedded in the MoE overall conceptual

approach to developing its activities. This includes the absence of an HIV/AIDS

11 EU. PER, August 2011

22

consciousness within MoE in terms of its negative impact on the education

system; the limited attention paid to adequately developing the knowledge and

innovation sub-program as an important element to reach the Vision 2030 goal of

a knowledge-based economy.

ii) Some actions need continuous follow-up actions to be effective. For instance,

policies that need action plans to be fully implemented, training programs that

need an assessment of their efficiency.

iii) Certain activities have been initiated but risk not being fully completed in the

absence of complementary actions. For instance pro-poor expansion of access

cannot be completed in the absence of a school mapping exercise; eventual

increase in the number of VTCs and COSDECs need a proper study of regional

characteristics and local labor market needs.

82. Thus the risks to future development outcomes arise from:

i) The lack of education planning knowledge at all administrative levels in the

MoE which handicaps a balanced development of education services.

ii) The lack of proper monitoring and evaluation system and tools,12

which

makes it difficult to properly assess the efficiency of certain activities (such as

teacher training, curriculum development), and to monitor the delivery of the right

outcomes.

iii) The absence of monitoring effectiveness of expenditures among the sub-

programs, to ensure that the original allocations were made in accordance with

education priorities, and funds were disbursed following the agreed priorities.

This issue derives from the absence of M&E and, partially, from the lack of

planning capacity.

iv) The still existing disparities among regions in funds allocation. It is expected

that the new funding formula presently under discussion will address the issue of

equitable distribution of resources. This will be a step towards pro-poor delivery

of education services, though eradication of inequalities will take longer to

resolve.

83. Despite the risks mentioned above, a moderate rating is justified by the fact

that a number of positive actions have been taken in the last few months. The current

Minister of Education is keen to understand the shortcomings and risks associated with

the development outcomes and had requested a Medium Term Review of ETSIP 1. The

MTR suggests concrete measures to address the above risks, mainly to be taken during

the remaining phase of ETSIP 1. Most of these measures have been endorsed by the

government as well, thus reducing the risk level. For instance, the introduction of

implementation plans of certain cross-cutting sub-programs such as HIV/AIDs education

and Capacity Development together with the other sub-programs receiving inputs; and

the introduction of a new sub-program on Monitoring and Evaluation.

5. Assessment of Bank and Borrower Performance

12 M&E was an output contained in the activities supported by the DPLs, but was not delivered

23

(relating to design, implementation and outcome issues)

5.1 Bank Performance

(a) Bank Performance in Ensuring Quality at Entry (i.e., performance through lending phase)

Rating: Moderately Satisfactory

84. The quality at entry of the project is rated as Moderately Satisfactory. The World

Bank did a thorough review of the sector prior to the DPL series. The Bank team was

proactively involved in supporting the MoE with the design of the ETSIP program and

the expected outcomes. Preparation activities were also very intense, timely, and involved

MoE staff of various departments. The program was ambitious and up to the standard of a

middle income country education system.

85. The partnership with the government suffered at the beginning from a negative

perception of the Bank among government staff and other stakeholders. This perception

changed when the MoE, started to appreciate the high quality technical support provided

by the Bank missions. At the time of appraisal, disagreements on some elements of the

program’s content (e. g. HIV/AIDS, CD) were finally resolved.

86. A Quality Enhancement Review was held on January 25, 2007 and was asked five

main questions concerning the appropriateness of: i) a DPL operation, ii) the proposed

triggers, iii) the government’s funding of Bank policy and technical support, iv) the

overall implementation arrangements and, v) relevance, feasibility and technical

soundness of the government’s overall program. The review panel: a) endorsed the DPL

instrument, b) expressed concern at the number of policy and action measures listed in

the program document, c) advised the team to prepare detailed TOR identifying the

support expected by the Bank following the Government’s agreement to provide funding

for US$ 2 million to cover the Bank’s costs of providing policy and technical advice

during and after the implementation of ETSIP 1, d) suggested that a list of detailed sector

performance indicators be developed to be reviewed at the annual meeting in September,

and e) considered ETSIP to be relevant, coherent and appropriate in the context of the

country’s education status. As a result of the panel’s recommendations the team included

in the Project Document (PD) of DPL1 as Annex 3 a policy matrix providing

Outcome/Output Indicators for the base year and for the years 2007/08 and 2008/09. The

Project Document for DPL2 included an expanded Policy Matrix providing target

indicators for the years 2006/07, 2007/08 and 2012/13.

87. In hindsight, two issues might have improved the quality at entry. First, the Bank

team did not identify key PDO indicators. This shortcoming has however been partly

overcome by the introduction of a long list of detailed sector indicators. However, the

indicators that were introduced were not the usual ones adopted by the education sector

or collected under the EMIS of the country.

88. Another aspect that could have improved the overall outcomes, and relates to

quality at entry is when preparing the DPL the policy dialogue with key policy makers

outside of the education sector was not fostered. Although the various key ministries

24

were invited in all stakeholders meetings and discussions, some chose not to be a part of

the process. The World Bank team did not see this as a potential problem when preparing

the DPLs. However, this created a sense of unease across key ministries. Perhaps, a lack

of complete buy-in for the DPL series from the Ministry of Finance might have been a

contributing cause of the delay in signature of the second DPL.

(b) Quality of Supervision (including M&E arrangements)

Rating: Moderately Unsatisfactory

89. The first Bank assistance mission, as requested by the Government, took place

during the period April 26 to May 14, 2004. Seven additional missions followed, until the

Joint Appraisal mission that took place October 1 to 17, 2006. All the donors involved in

ETSIP participated in discussions on the presentations of the sub-programs made by

various MOE officials.

90. After effectiveness (12/20/2007), the Bank sent one implementation assistance

mission in March-April, 2008. The Aide Memoire of the mission mentioned under

paragraph 2.2 that:

In future, Bank missions will focus on the technical support required to resolve

implementation issues that the MOE team could not resolve on its own, and

In addition, future Bank teams will provide training in areas identified by the

MOE team as critical for their capacity development.

91. There was no follow-up on these actions. The preparation for DPL2 took

precedence.

92. After the delay in signature of the loan documents, the World Bank sector team

did not conduct many in country missions. The focus of discussions at the time was

clarification of the issues surrounding the negative pledge clause in the loan agreement

and the FBSA as mentioned in section 2 above. Thus the related missions that visited

Namibia during this period, and the discussion held, also via audio and video conferences,

revolved around the resolution of the legal issues. Therefore the policy support for ETSIP

from the World Bank was unable to take precedence. There is also some possibility that

the involvement of the World Bank in policy dialogue in Namibia during the period of

Oct. 2008 – Sept. 2010 suffered because of staff turnover during the latter half of 2009.

The absence of a World Bank office in Namibia and a permanent presence on the ground

also appear to be amongst the main reasons for contributing to the misunderstandings

with the client country.

93. The World Bank participated in the Development Partner’s meeting with the MoE

and the new Education Minister in Nov. 2010. The final implementation support mission

went to Namibia after signature of the second DPL in Feb. 2011. The mission monitored

the progress of the various activities envisaged under DPL2. The mission was specifically

asked by the Minister of Education to lead a review of ETSIP1. Upon this request, the

25

World Bank agreed to lead a mid-term review of ETSIP1 with the support of all DPs and

identify the way forward for the program.

(c) Justification of Rating for Overall Bank Performance

Rating: Moderately Unsatisfactory

94. Attribution is always difficult in a Development Policy Operation. In this

particular DPL, the delay in signature of the second loan of the series and the presence of

a number of other supporting DPs makes the attribution of results even more difficult.

However, based on the reading of relevant communications staring from 2003 to the

signing of the first DPL, it is the view of the ICR mission that the World Bank played an

integral role in the design and development of the policies adopted under ETSIP. The

Bank helped ETSIP gain momentum which has been sustained by the DPs and the MoE.

95. The rating is based on the good performance in the up-stream activities leading to

the approval of the operations. The technical support from the World Bank has been

publically praised by the GRN. Some issues in the quality of entry, such as wider

consensus across key ministries around the DPLs impacted the quality of the final

product. Concerted efforts were put in by the World Bank in trying to resolve the issues

that were causing a delay of the signature of the second DPL, including attempts to

address the concerns of the GRN on the loan agreements as well as laying out the option

of cancelling the second DPL without any subsequent implication for the Government of

the Republic of Namibia. This delay did, however, impact the sectoral dialogue on policy

implementation issues with the government during the period that the second loan was

not signed thus justifying a rating of Moderately Unsatisfactory.

5.2 Borrower Performance

NOTE: The government and the implementation agency are the same so the rating

and performance are given together below.

(a) Government Performance Rating: Moderately Satisfactory

96. The government’s performance is rated as moderately satisfactory on the basis of

its mixed performance in achievement of PDOs.

97. As detailed in section 2.1 (Program Performance) and 3.2 (Achievement of

Program Development Objectives), the government performed very well in certain

activities. The MoE performed well in adopting the main policies to be developed under

the two DPLs, and in areas such as the introduction of standardized tests, curricula

revisions, the adoption of standards in IALL, TET, VET and ECD/PPE, the construction

of new secondary schools with priority to disadvantaged areas, and the financial

assistance for OVCs entering the education system. Similarly VET Act was promulgated;

the NTA Board was appointed; five Industrial Sector Councils (ISCs) have been

established and three are functioning; a legal framework for devolution to VTCs was

prepared. These are significant achievements given the short period of time.

26

98. There were however, a number of delays and certain targets were not achieved –

the most important of which were the improvement of quality of education. More

specifically, the MoE failed to (a) analyze the causes of repetition and drop out, important

for taking corrective measures to improve efficiency (b) define and adopt the NHICD for

pre-school children, delaying the definition of proper inputs for this age group, (c) set up

a proper M&E system and structure, (d) develop the planned activities included in the CD

sub-program (e) give proper attention to the cross-cutting significant activities of sub-

programs such as CD and HIV/AIDS.

(b) Implementing Agency or Agencies Performance Rating: Moderately Satisfactory

99. Since the implementing agency and the Borrower are the same, the same rating

applies to both and is the same as discussed in (a) above.

(c) Justification of Rating for Overall Borrower Performance Rating: Moderately Satisfactory

100. The ICRR guidelines (Appendix A) identify nine criteria for rating government

performance.

The government had a complete ownership of the ETSIP program and was and

has remained committed to achieving the development objectives of the program

supported by the DPLs.

The enabling environment for the program was conducive to the achievement of

the objectives.

Although key staff were appointed, the Ministry of Education in its totality was

not ready for implementation of such a complex and large program without

extensive implementation support.

Implementation issues were not highlighted and resolved in a timely manner thus

leading to a delay in certain activities in the program.

Fiduciary requirements were met satisfactorily.

There was good coordination between the various DPs based on the MoU signed.

Monitoring and evaluation structures were not well established.

101. Based on this, satisfactory rating is attributed to ownership of the program,

willingness to create an enabling environment, fiduciary requirements, and coordination

of DPs. However, the implementation capacity and delay in introduction of capacity

development programs slowed the progress and overall a Moderately Satisfactory rating

deems appropriate.

6. Lessons Learned (both operation-specific and of wide general application)

102. Complex program design: Programs/projects with many components are always

difficult for the country to implement, particularly when the operation is the first in the

27

sector. ETSIP included activities aiming at improving all levels and sectors of education,

from early child education to the tertiary level, from adult education and lifelong learning

to vocational training. ETSIP was the first program of this magnitude, supported by DPs,

to be implemented by the MoE. It put a strain on the ministry’s staff and resulted in

delays in implementation. It also led to a loss of unified direction in trying to attain the

set objectives. The Bank should avoid supporting complex operations when they are the

first such experience for the country. A leaner first operation, setting the appropriate base,

can be followed by a more ambitious one.

103. Stakeholder engagement: When engaging in a country with little, or no,

experience in dealing with the Bank, sufficient, time should be spent in ensuring that all

stakeholders understand and agree on what the proposed cooperation entails (in terms of

processes, mutual responsibilities and obligations, and financial support conditionalities).

This responsibility lies not only on the sectoral TTL, but also on the wider country team

who has better access to important relevant ministries such as the Ministry of Finance and

Ministries of Planning and Economic Development. In the specific case of Namibia, the

permanent presence of the World Bank in Namibia in the form of an office can also help

the clients understand the modalities of operations of the Bank. Such a presence helps

foster relationships with the wider government (rather than sectoral links) and helps

clarify misunderstandings as they arise.

104. The lack of prior analysis of the implementation capacity of MOE was a

noticeable hindrance to a smooth execution of the program activities. The design of the

program did not take in sufficient consideration the execution capacity of the

implementers. It also did not into account the time necessary for the government to adopt

important policy measures. The capacity development sub-program was a late add-on in

the preparation process, and was never considered by the MOE as the basic element for a

successful implementation. In such complex operations the Bank should carry out a prior

analysis of the implementation capacity of the institutions involved, and an assessment of

the bureaucratic procedures for producing certain outputs, and give high priority to the

development of the required skills and basic procedures. The development of the required

capacities should have had an upstream preeminent position in the implementation plan

of the program.

105. Project development objective indicators need to be specified so that the key

indicators can be followed up over time. Additionally, if new indicators are introduced to

measure the impact of specific interventions, it should be ensured that the relevant unit in

the Ministry is fully conversant with the techniques of collecting those indicators.

Regular follow-up by the implementation support missions, specifically on proper data

collection and analysis is integral for efficient monitoring.

106. Continuous implementation support: There should be continuity in assisting

the implementation of programs/projects. Long gaps in the timing of assistance inputs

cause slow-downs in execution, and the risk of distortions in the attainment of

intermediate objectives and outputs as compared to the original ones. Fully staffed

missions are not always required: the visit of a single person, with the specific skills to

28

address key issues, is sufficient enough to provide valuable inputs when required and, in

general, is appreciated by the implementers.

107. Considerations for working with development partners: Mobilization of

development partners around a program is not the end goal of partnerships but a

continuous fostering of relationships and transparent interactions is integral for the

success and efficiency of the program.

7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners

(a) Borrower/Implementing agencies

(b) Cofinanciers

(c) Other partners and stakeholders (e.g. NGOs/private sector/civil society)

29

Annex 1: DPL Policy Matrix

Note: Prior actions are in BOLD, C= completed; PP= postponed; S = implementation is continuing satisfactorily, RO= roll out of pilots or trialed actions

Policy Area/

Issue

Prior actions for DPL1

(in bold) Status

Prior Actions for DPL2

(in bold) Status

Results

Indicators

Base

Year

05/06

Targets

2006/07 2007/08 2011

Plan Actual Plan Actual Actual

1. Equitable expansion of

access to post-

basic education and training

Adoption of action plan that enables

a 7 percentage point increase in grade

11 intake

C

Continued implementation

of actions that comprise

the senior secondary education and training

expansion plans

C

Percentage point change in

Grade 11 intake

% annual change in VET intake

Proportion of new senior

secondary education and training places created in the

poorest regions

16,977

3,011

0

7%

14%

60%

-4%

57%

60%

7%

14%

60%

-2.5%

21%

60%

15.7%

55%

60%

Optimizing enrolment in existing senior secondary schools

C

Extension of existing senior secondary

schools

C

Construction of new senior secondary schools

C

Optimizing the use of existing private

and regional VTCs that meet the

efficiency, quality, and cost effectiveness criteria

PP

2008/9

Plan for the adoption of a quota system

for enabling students from the poorest regions to enter grade 11

C Institution of a quota

system for grade 11 admission

Trial

tested RO in

2009

Plan for the establishment of

conditional grants to enable OVCs to

complete senior secondary education

C

Institute conditional grants

for OVCs

C Percentage of OVCs that

successfully complete senior

secondary education

0% 5 % 3.8% 5% N/A

N/A13

Develop a feasible action plan for establishing six magnet schools in the

poorest regions

S

Commence the construction of the first

three vision schools

PP to 2009/1

0

Adoption of a plan for increasing pre-

entry mathematics, science and ICTs

programs to reach 50 per area by

2008

C Tertiary pre-entry

programs in math,

science, and ICTs

enrolling 50 students per

area has commenced

C

Enrolment in pre-entry:

Mathematics Physical Science

Biology

IDCL (ICTs) English

0 0

0

0 0

0 0

0

0 0

0 0

0

0 0

50 50

0

50 0

100 100

100

100 100

106 105

105

114 106

13 ICR mission was informed that this information is not available since learners are no individually tracked.

30

DPL policy Matrix (continued)

Policy area/

issue


(in bold)

Status Prior actions for DPL2

(in bold)

Status Results

Indicators

Base

Year

05/06

Targets

2006/07 2007/08 2011


2. Improvement of

education quality / effectiveness

Adaptation of the international holistic early child development

index to the Namibia context

Not done

Formal adoption of the index by the MGECW,

MoE, and MoHSS

Not Done

Percentage of 0- to 4+-year olds who meet the Namibia-

specific index

0%

20%

N/A

25%

N/A

N/A

Articulation of learner

competencies that constitute primary school readiness

C

Elaboration of the current

10-week school readiness program into a 1-year

program

C

Percentage of children

entering primary education with adequate levels of

readiness for grade 1

0%

15%

7.1%

20%

11.9%

16.9%

Definition of core skills and competencies to be acquired by

learners at lower primary level

(grade 1 – 4)

C

Revision of lower primary education curriculum to

reflect agreed skills and

competencies

The revised lower

primary curriculum and

start of implementation

in schools has been

approved by the NEACB

C

C

Percentage of learners who

complete lower primary

having acquired core skills

and competencies

20%

30%

N/A

35%

42.5%

42.5%14

Adoption of a policy to

introduce standardized

diagnostic tests for grades 5

and 8

C

Introduction of grade 5

standardized diagnostic

tests

S

Adoption of a plan to enable a

5 percentage point increase in

the budget allocation for

primary and secondary school

books and instructional

materials from 2007 to 2008

C

The textbook policy has

been approved by the

Borrower’s Cabinet

C

Percentage Budget

allocation for primary and

secondary books and

instructional materials

1%

5%

1%

5%

1%

1.3%

(Primary)

3.1%

(secondary)

Cabinet approval of a sector

ICT policy

C

Integration of ICTs in core

learner competencies at all

levels and in education management

C

Dissemination of adopted

schools performance standards

to all schools

C The MoE has assigned

academic performance

targets to each primary

and secondary school

Placing school principals

on performance contracts

C

PP

2009

/10

National average SACMEQ

test score (Reading and Mathematics)?

449

(2000)

431

(200

0)

497

473

14 This value is the number of students passing the grade 5 national assessments. These assessments take place biannually so the last value available is for 2008/09.

31

DPL policy matrix (continued) Policy area/

issue


(in bold)

Status Prior actions for DPL2

(in bold)

Statu

s Results

Indicators

Base

Year

05/06

Targets

2006/07 2007/08 2011

Plan Actual Plan Actual Plan Actual

3. Eradication

of inequalities in the

distribution of

education resource inputs

MoE agreement to introduce a policy

on per capita funding for primary and secondary schools , and VTCs

C The baseline survey to

enable the establishment of

a SRN has been completed

by MoE

C

Disadvantaged schools

that meet input norms per annum

0

5%

N/A

30%

N/A

N/A

Agreement to adopt a policy on

conditional grants for schools that are unlikely to meet their performance

standards based only on per capita funding

C

Articulate minimum input

norms and standards for primary and secondary

schools

C

Finalization of draft funding formula

for VTCs and for tertiary education

and training institutions

PP

2008/09

Adoption and

operationalization of funding

formula

PP to

2009-

2010

MoE articulation of a phased

withdrawal of subsidies from private

profit-making schools

S

A new formula for

determining applicable

levels of subsidies to private

schools approved by the

Borrower’s Cabinet

C

4. Improved

efficiency in

resource mobilization

and utilization

Agreed operational plan for

reducing the average repetition,

dropouts, push-outs and for

increasing LTR in general

education

C

Continued implementation of

agreed plan

C

Internal efficiency:

Repetition rate in the first year of each phase

(grades 1, 5, and 8)

Average repetition rate

for basic education

(grades 1 to 10)

Grade 10 push-out rate

Primary LTR

Secondary LTR

19.6% 22.1%

23.1%

15.5%

47%

31:1

25:1

16% 19%

20%

14%

40%

32:1

26:1

21.9% 25.7%

24.2%

20

39%

tbd

tbd

16% 20%

19%

15%

30%

33:1

28:1

21% 24%

25%

17.8%

24.8%

21:1

24:1

20.2% 22.3%

26.4%

15.4%

32.6%

29:1

24:1

Commencement of negotiations with

the OPM and teachers’ unions on the increase of learner to teacher ratio

C

Cabinet approval of the non-application of price preferences to

ETSIP1 tenders

C

Tender Board clearance of ETSIP1 contracts for non-application of price

preferences

C

Establishment of a payroll levy to be

applied toward the expansion of VET places

PP to

2009/10

Agreed plan to de-link teacher salaries

from unnecessary and irrelevant qualifications

C Teachers’ salary increments

have been de-linked by the

Borrower’s OPM from

unnecessary and irrelevant

qualifications & linked to

performance

C

Primary teachers’

salaries as a percentage share of the recurred

budget

95%

90%

93%

85%

88%

88.4%

Secondary teachers’

salaries as a percentage share of the recurred

budget

92%

87%

91%

85%

88%

89.7%

32

DPL policy matrix (continued)

Policy area/

issue


(in bold) Status


(in bold) Status

Results

Indicators

Base

Year

05/06

Targets

2006/07 2007/08 2011


5. Strengthen delivery capacity

and the response to

HIV/AIDS

Approval of a sector policy

on HIV/AIDS C

Adoption of operational plans for

enhanced mainstreaming of HIV/AIDS education in all aspects

of ETSIP1

C

HAMU and RACES fully operational

C

Establishment of HAMU and

RACEs C

Establishment of the ICTs

division of the MoE

C

Mainstream ICTs in the academic

co-curricular and sector

management programs at all levels of the system

C

MoE ICT division fully

operational

C

Approval of the new VET

Bill to allow for the

establishment of the NTA

C

Ministry of Education’s approval of

an operational plan to devolve

authority to VTCs

C

NTA fully staffed and

operational

C

(PMU)

Adoption of legislation for

the establishment of the

NCHE with a competent

secretariat that is able to

fulfill its mandate

C

Adoption of a teacher education

reform plan by the Advisory Council on Teacher Education

Establish the NCHE Secretariat

PP to

2008/9

C

NCHE established and

competent Secretariat staff in post

C

Approval of the transfer of

pre-primary education from

the MGECW to the MoE

C

14 qualified staff seconded

in post and NEID pré-

primary unit fully operational

C

Creation and staffing of a pre-

primary unit at NIED

C

Creation and staffing of a

procurement unit of the MoE

C

All the core staff of the

MoE procurement unit and 10 support staff completed

basic and advance

procurement training on works, goods and services

C

Adoption of a plan to

strengthen MoE leadership

and management capacity

PP to

2009/

10

All senior management

(from Permanent Secretary

to Directors) of the MoE

trained in leadership and

decision-making skills

PP

2009/

10

Cabinet approval of a sector

ICT policy

C

Integration of ICT s in core learner competencies at all levels and in

management

C

33

Annex 2: Bank Lending and Implementation Support/Supervision Processes

(a) Task Team members

P086875 - Education and Training Sector Improvement Program - ETSIP

Names Title Unit

Responsibility/

Specialty

Lending

Victoria L. Fofanah Senior Program Assistant ECSO1

Jeanette Marie Mallet E T Consultant AFTOS -

HIS

Mmantsetsa Marope Sr Education Spec. AFTED

Debbie Peterson Temporary AFTH1 -

HIS

Ganesh Rasagam Senior Private Sector Developm AFTFE

Vanessa N. Saldanha Program Assistant MIGCO

Supervision

Henri A. Aka Operations Officer SASHN

Arun R. Joshi Senior Education Specialist AFTED

Luz Meza-Bartrina Senior Counsel LEGAF

Debbie Peterson Temporary AFTH1 -

HIS

Cristina Romero Temporary HDNGA

- His

Gert Johannes Alwyn Van

Der Linde Lead Financial Management Spec AFTFM

P109333 - Support of ETSIP 1 DPL 2

Names Title Unit

Responsibility/

Specialty

Lending

Supervision

Henri A. Aka Operations Officer SASHN

Andrew Osei Asibey Senior Monitoring & Evaluation AFTDE

Faith Babalwa Chirwa Team Assistant AFCS1

Nicolette K. DeWitt Lead Counsel LEGAF

Luz Meza-Bartrina Senior Counsel LEGAF

Cristina Romero Temporary HDNGA

- His

Gert Johannes Alwyn Van

Der Linde Lead Financial Management Spec AFTFM

34

(b) Staff Time and Cost

P086875 - Education and Training Sector Improvement Program - ETSIP

Stage

Staff Time and Cost (Bank Budget Only)

No. of staff weeks USD Thousands (including

travel and consultant costs)

Lending

FY04 4 31.34

FY05 22 138.62

FY06 34 238.05

FY07 28 187.83

FY08 0.00

Total: 88 595.84

Supervision

FY04 0.00

FY05 0.00

FY06 0.00

FY07 0.00

FY08 10 66.75

FY09 1 0.00

Total: 11 66.75

P109333 - Support of ETSIP 1 DPL 2

Stage

Staff Time and Cost (Bank Budget Only)

No. of staff weeks USD Thousands (including

travel and consultant costs)

Lending

FY08 36.21

Total: 36.21

Supervision

Total: 0.00

35

Annex 3: Beneficiary Survey Results

(if any)

Not Applicable

36

Annex 4: Stakeholder Workshop Report and Results

(if any)

37

Annex 5: Summary of Borrower's ICR and/or Comments on Draft ICR

REPUBLIC OF NAMIBIA

MINISTRY OF EDUCATION

Implementation Completion Report for DPO in support of ETSIP1

Background

In October 2002, Cabinet by Decision 26th/15.10.02/0003 authorised the Ministry of Higher

Education, Vocational Training, Science and Technology to co-ordinate a study on Human

Capital Development and Knowledge Management for Economic Growth and Equity. The

World Bank was invited to undertake a critical analysis of the sector and to advise the

government how to best improve the sector and transform it into a better tool for supporting

national development. The study was conducted mainly in response to the Presidential call on

all sectors of the economy to effectively contribute to the realization of national development

goals and to the actualization of Vision 2030.

Three National Consultative Forums were held. The First Consultative Forum was held

during 29-30 January 2003 and set the scope for study, its methodology and time-frame. The

Second Forum, held during 22-23 May 2003, examined the key findings of the study;

corrected misinterpretations and pointed out critical omissions. The Third Forum was held on

21-22 August, 2003. This Forum focused on deciding on how best Namibia could apply the

findings and recommendations of the Study. The study was thus conducted through a

consultative process.

The analysis pointed towards the need for a comprehensive reform, notwithstanding the

substantive gains and progress made by the sector during the period after independence. The

reform was geared towards the improvement of quality and effectiveness, internal efficiency,

relevance and responsiveness and redressing the lingering inequalities.

In April 2004 the report on the study was discussed to identify and articulate key components

of an improvement programme. A draft strategic framework was then developed jointly by

World Bank experts and a Namibian task force. This framework used a comprehensive

sector-wide approach, taking as point of departure the already existing plans and programmes

of the sector Ministries. As an improvement programme it responded to critical, new and

emerging challenges facing the sector.

An intensive planning process ensued with World Bank technical support, resulting, in

February 2005, in the adoption by Cabinet of the fifteen-year Strategic Plan for ETSIP,

Planning for a Learning Nation. The Strategic Plan was endorsed by Namibia’s development

partners and stakeholders in education and training during the Round Table meeting held in

March 2005.

38

It was agreed that ETSIP would be implemented in three five-year phases. The first, from

2006 – 2011, coincided with the Third National Development Plan (NDP3). It was further

decided that the programme would be divided into sub-programmes and work commenced on

the development of detailed 5-year implementation plans. The strategic plans and costed first

drafts of the 5-year plans were discussed with various stakeholders, including regional offices

of education, teachers, members of school managements, the teachers’ unions, members of

regional governance and educational fora in all 13 regions to ensure ownership and

collaboration. Comments were incorporated as far as possible.

The development process was spearheaded by the ETSIP Task Team which consisted of

representatives of all the line ministries in the education and training sector, the Ministry of

Finance and the National Planning Commission. This team was replaced by the ETSIP

Programme Coordinating Committee, under the chairmanship of the Permanent Secretary of

the Ministry of Education, in July 2006 after limited implementation of the programme

commenced utilising government funding.

In the development of the 15-year strategic plan, five main strategic objectives were

identified:

Quality/effectiveness

Equity and Access

Development relevance and Responsiveness

Delivery Capacity and Management

Efficiency of resource mobilisation and utilisation.

The set of strategic objectives is common across the sub-programmes, but each sub-

programme has determined its own order of priority.

In addition to these objectives, a set of strategic objectives for the first phase of ETSIP were

determined. These are as follows:

strengthening the supply of middle to high level skilled labour

improving the quality, efficiency and effectiveness of general education

systematising knowledge and innovation

Improving the effectiveness and relevance of the tertiary education system, and

strengthening the policy and legal framework for access to lifelong learning.

These strategic objectives were pursued through nine Sub-programmes, for Early Childhood

Development and Pre-Primary Education, General Education, Vocational Education and

Training, Tertiary Education and Training, Knowledge Creation and Innovation, Information

Adult and Lifelong Learning, HIV and AIDS, ICTs, and Capacity Development. While the

first six sub-programmes focussed on specific areas in the education and training sector, the

last three covered cross-cutting issues. This made of ETSIP a truly sector-wide approach.

A simulation model was developed as part of the development of ETSIP to estimate global

resource requirements for the implementation of ETSIP, to identify resource gaps and to

investigate savings which could accrue from the different policy choices.

The sector developed an Expenditure Issues Paper which clearly indicated, amongst others,

that available funds to the sector had decreased in real terms and that spending trends had

become increasingly skewed towards non-discretionary items such as personnel spending. It

was clear that, in order to implement the new activities and the priorities identified as

envisaged under ETSIP, critical policy decisions would need to be made regarding core

sector policies such as the full implementation of the staffing norms, the introduction of wage

restraint to contain wage bill increases (which goes across the public sector), and the

39

introduction of learner unit costs based on the number of learners per region to redress the

inequities in resource allocation.

A fund raising round table meeting for ETSIP was held on April 19 and 20, 2006. This was

followed by a positive joint DPs' pre-appraisal of ETSIP in March 2006 which concluded that

the proposed programme was adequate to provide a balanced sector development and that it

was consistent with its strategic objectives and sub-objectives. A joint appraisal was

conducted by Development Partners' (DPs) in October 2006. However, in June 2006 the

GRN decided to commence with the implementation of ETSIP, using its own resources,

ahead of the pledged contributions of development partners becoming available. In July 2006,

the MoE presented a programme inception report to the DPs which met the DPs reporting

requirements. The first quarterly progress report was presented during the joint appraisal.

ETSIP has become a high profile national cause to which the government and many partners

are fully committed. ETSIP is the flagship programme of the Government of the Republic of

Namibia and there is strong national ownership and support for its implementation which will

improve the education and training system and result in higher economic growth,

employment creation and poverty alleviation and help Namibia to leap frog into a

knowledge-based economy.

40

Assessment of Outcomes against DPL Indicators

DPL1 Prior actions Proof of Achievement Current Status

Policy actions

Cabinet approval of a National Policy on HIV and

AIDS for the Education Sector Cabinet Decision No 13

th/20.05.03/002

“Cabinet approves and direct the Ministries of Higher

Education, Training and Employment Creation and

Basic Education, Sport and Culture to implement the

National HIV/AIDS policy for the education sector, as

soon as possible, and to monitor its implementation

closely and bring about amendments as required”.

Policy being implemented

Cabinet approval of the Policy on ICT in the Education

Sector Cabinet Decision No 5th/08.03.05/001

“That Cabinet approve the ICT Policy for Education

Implementation Plan and Guide….”

Policy being implemented

Cabinet approval of the policy to institute grade 5 and

grade 8 standardized achievement tests, Cabinet Decision No: 4th/o1.03.05/002 endorsed the

Strategic Plan for ETSIP (2005 – 2020) which listed and

detailed a number of policies, including a policy to

introduce standardized diagnostic tests for grades 5 and

8.

It was decided by MoE to conduct the SATS in grades 5

and 7.The first round of grade 5 SATs were conducted

and 2009 and the first round for grade 7 in 2010.

Results for both sets of assessment tests were provided

and presented to stakeholders in education.

Ministry of Education adoption of a policy on per-capita

financing; The MoE Budget Committee decided on 8 December

2006 to move to per capita financing with effect from

the 2007/2008 financial year. This decision was based

on two discussion documents and a workshop. In the

2007/08 financial year 10% of the primary and

secondary education budgets was allocated in terms of a

per capita funding formula. The pace for the allocation

of the remaining 90%, and the allocation of weightings

to be given to certain additional factors, has not yet been

decided, but will be the subject of further technical

assistance.

The formula is still being adjusted and has not been

implemented.

Commencement of negotiations with OPM and Unions

on policy, target and plan to increase learner teacher

ratio;

Negotiations between the Ministry of Education and

NANTU on staffing norms commenced on 16 October

2006. It was not possible to reach an agreement at this

level. It was therefore decided to refer the matter to the

main negotiation table. Accordingly, a GRN

The new staffing norms, accommodating the cluster

policy, full time life skills teachers and school librarians

are internally approved at Management Policy

Coordinating Committee level. While job evaluation

and re-grading is done this document is ready to be

41

Prior actions Proof of Achievement Current Status

negotiating team led by the Secretary to Cabinet was

appointed, mandated by Cabinet, and briefed.

submitted to OPM for approval. The MoE decided to

maintain the current staffing norm of 1:35 at primary

and 1;#9 at secondary.

Adoption of a policy to introduce conditional grants for

schools that cannot meet input norms based only on per-

capita financing

On 2 March 2007 the Permanent Secretary of the

Ministry of Education decided, on the basis of a

submission from the Directorate PQA, that the said

Directorate should spearhead the formulation of a policy

that offers conditional grants to schools that do not meet

or achieve certain levels in terms of National Standards

and Performance indicators or after the implementation

of the per capita funding formula for schools.

Though a register for orphans and vulnerable children

was developed this system does not track learners and

their academic performance.

Legal actions

Cabinet approval of the new VET Bill to allow for the

establishment of the NTA; and

Cabinet Decision No 20th/07.11.06/027 approved the

Bill. The Bill was accepted without amendment by the

National Assembly on 5 July 2007.

VET Act being implemented

Enactment of the legislation for the establishment of the

National Council for Higher Education (NCHE).

Higher Education Act, Act No 26 of 2003 proves

adoption of the legislation. The Council was

established and formed committees for its main

responsibilities.

The second NCHE Council is currently in place and the

committees are functioning.

Institutional actions

Establishment and staffing of a pre-primary education

unit at NIED

The unit was established at NIED in January 2007

through the assignment of a national coordinator and

one staff member from each region.

The Unit was disbanded after finalising the preparatory

work and Pre-primary coordinators were appointed in

the regions.

Cabinet approval of the transfer of pre-primary

education from the MGECW to the MoE. Cabinet Decision No 20th/07.11.06/010

“That Cabinet approve the amendment to the 1996

National Early Child Development Policy to make the

Ministry of Education responsible for the development

of a Pre-Primary Education Programme….)”.

An implementation plan for full role out of pre-primary

is developed and additional budget is requested to build

more classrooms and playgrounds where space allows

it. GER of PPE is at 8.1% for 2010.

HIV/AIDS management unit (HAMU) established in

the MoE, and of Regional AIDS committees for

education (RACE) set up in respective regions;

HAMU is in operation, under the leadership of a Deputy

Director, and RACE Committees exist in all regions. Race Committees are at work in the regions. HAMU

has lost its vision and is too involved in the regional

activities. HAMU will be revamped.

Establishment of the ICTs division at the MoE An ICT Division exists on the establishment of the

Ministry of Education and is staffed. The ICT Division is understaffed and lacks capacity. An

ICT Advisor has been appointed for a period of 2 years.

Establishment of the NCHE Done Council is functional and operating.

Establishment of an NCHE competent and dedicated OPM approved the creation of four temporary posts for The Higher Education Act is under revision. After the

42


secretariat as stipulated in the Act the appointment of the first secretariat of the NCHE and

ACTET (pending the amendment of the Act to enable

the NCHE to appoint its own secretariat independent of

the public service.) The positions were filled.

teacher education reform started in 2010, ACTET

ceased to exist with the implementation of teacher

education reform.

Establishment of a procurement unit in the Ministry of

Education All sub-programmes availed staff for training in

procurement and created dedicated desk for

procurement.

Procurement is done haphazardly and procurement

plans are no longer developed. The procurement unit

never functioned due to leadership and capacity

problems with the unit.

Upfront actions for improvement of education equity, quality and efficiency

Agreed plan for a phased increase of the MoE budget

share for books and instructional materials relative to

salaries

A plan was developed for the planned rate of increase of

expenditure on books and on personnel, showing that

the rate of increase of expenditure on books will be

higher than for personnel.

Decentralisation leaves the decision on amounts to be

spent on textbooks in the regions, where they indicate

that they spend 5% of their operation budget on

materials and supplies of which only 2/3 on textbooks.

Completion of standards on core skills and

competencies to be acquired during lower primary

education (grade 1 -4)

The new curriculum for grades 1 – 4 was approved. The curriculum was implemented and is followed.

Agreed operational plan for the establishment of six

“comprehensive” schools in the most disadvantaged

regions.

The plan was developed and it was agreed that the

schools would be called Vision Schools.

In the adjustment of the programme in 2007 it was

decided to build only one Vision School during ETSIP

1. Construction is underway and bids were invited for

equipment and furniture. The school will open in 2013.

An agreed plan of action for a pro-poor expansion of

enrolment in high quality senior secondary schools An operational plan was developed. Under the MCA-N project, 47 schools are being

renovated and receiving additional classrooms, science

laboratories, libraries, administrative blocks and teacher

housing. The schools were divided into 5 packages and

the second has recently been allocated. The project ends

in 2013.

Agreed plan for establishing conditional school grants

for OVCs An operational plan was developed. The National Conference on Education (June/July 2011)

strongly recommended free primary education. Cabinet

has directed the MoE to investigate the costs and

modalities involved.

Agreed operational plan for improving key internal

efficiency indicators – repetition, dropouts, LTR, and

use of physical space

An operation plan was developed and agreed. The plan has not been implemented but has been

identified as priority for the 2011/2012 financial year.

43

DPL2 Prior actions Proof of Achievement Current Status

Policy Frameworks

1. Cabinet approval of textbook policy The policy was approved by Cabinet Decision No

5th

/18.03.08/002

The Supply Chain Management Unit has been created

and MCA-N is assisting with the implementation of the

policy

2. Cabinet Approval for Revised ECD Policy Cabinet Decision No 19th

/06.11/07/010 approves the

revised policy

An implementation plan was developed and the policy is

being implemented.

3. VET Act Passed and NTA Operational Act No 1 of 2008: the Vocational Education and

Training Act, 2008 was promulgated in Government

Gazette No 4042 of 6 May 2008

The NTA is operational and implementing its business

plan which includes ETSIP activities

4. Draft organisational restructuring plan for the MoE

submitted to OPM

The organogramme was submitted to OPM, but has not

yet been finalised, since it was decided to first

concentrate on the decentralised regional structures.

The structure of the MoE head office is currently under

revision again to take into account the functions that

were decentralised. The regional structures were

submitted to OPM.

5. Section established n DNEA for grade 5 and grade

8 national testing

The section was established and staffed and is fully

functional. The MoE decided to rather do the second

achievement test in grade 5 so that interventions could

be set in place to prepare learners for the next school

phase.

The first SATs for grades 5 and 7 were conducted,

reports released and work started on the development of

interventions.

6. Develop EMIS modules for vocational education

and training and tertiary education and training

Questionnaires that will be used for VET and HEI were

developed

VETMIS was developed, tested and implemented.

HEMIS is still to be done.

7. NTA Created with combined employer and

employee majority on board

The first NTA Board served its term and a second

board is in place and functional.

The second Board, appointed in terms of the VET Act,

is serving its term of office.

8. Definition of competencies that school managers,

advisory teachers and inspectors require to render

effective teacher professional support and

development

Lists of competencies for each category were approved

by the Permanent Secretary.

Internal assessment of schools informed the school

development plans for all schools. A third round of

National assessments will commence in January 2012.

9. MoE adoption of a reform plan for pre-service and

in-service teacher education as recommended by

ACTET

The reform plan was developed and approved and the

four colleges of educations were merged with the

Faculty of Education of the University of Namibia on 1

April 2010.

All teacher education resort under the University of

Namibia. A Continuous Professional Development Unit

was created and has started its work.

10. Assignment of performance targets for each

school.

Targets were set and schools were informed of these

targets.

Schools are monitored and trained on the importance of

target setting.

44


Upfront Actions to Improve Efficiency

11. Develop incentive system to attract teachers with

scarce qualifications to underserved areas and retain

good performers

The incentive system was approved by OPM The system has been implemented.

12. MoE approval of operational plan to devolve

authority to VTCs

This plan was developed and implementation falls

under the NTA.

The plan was piloted at the Zambezi Vocational Centre

and is being taken to scale in other centres.

13. Baseline survey for establishing school register of

needs is completed

A database of school facilities, equipment, book stock,

etc. is available as result of a mapping exercise.

The items for the School Register of Needs are being

developed by MoE and its Development Partners. The

possibility of using EduPac as tool for collecting and

availing information is being investigated. Work on

school profiling is at an advanced stage.

14. Revised formula for providing subsidies to

private schools

The formula was revised and approved. The formula is used as basis for providing subsidies to

private schools.

15. NTA adoption of expansion plan for VET The expansion plan was developed. The plan will be implemented as part of ETSIP activities

for the next phase.

16. Commencement of pre-entry programmes for

tertiary education

A third cohort of students have just finalised the

programme.

The next cohort will be enrolled in 2012.

17. Conditional grants have been introduced with

appropriate financial provisions to enable OVCs to

successfully complete general education

The policy for orphans and vulnerable children was

developed.

As yet this system is not operational, but the MoE is

investigating free primary education for all as the

recommendation was made at the National Conference

on Education in June 2011.

45

Reporting

A substantive and financial reporting mechanism was agreed between the Education and

Training Sector and the DPs. This entails quarterly reports, half-yearly reports and an

annual report. The reports coincide with the GRN/Development Partners joint semi-

annual review of programme implementation and the technical discussions. Sub-

programme managers report through the three Under Secretaries and submit monthly

commitment registers as well as quarterly financial reports which are used to track

expenditure. Throughout ETSIP1 the depth and substance of reporting from sub-

programmes continued to increase resulting in more detailed reporting on specific

achievements and problems.

Achievements

Relevance of design and objectives

Sub-programmes reported that the design responded to most aspects of the specific

sections of the sector as well as a number of cross-cutting needs such as those in HIV and

AIDS. It also paved the way for systematic reporting against commonly agreed

performance indicators.

Achievement of programme objectives

All activities in Pre-primary education are either on track or achieved ahead of time. In

General Education not all activities remained on track as the initial focus on expansion of

access to senior secondary education and improved efficiency lost some thrust. In VET

the NTA was established, albeit some three years after the target date, and the NTA has

taken over the responsibility for the management and direction of the VET system.

However, the establishment of the levy system was delayed and there was not much

progress on the expansion of VET across the country. There was no increase in the

number of graduates with medium and high level skills. In Higher Education, the

National Council for Higher Education was established with a number of sub-committees

and is operational. The teacher education reform is underway and a national quality

assurance system was developed for implementation in 2012. A tracer study on the

students from the pre-entry programme shows that 69%of the graduates are enrolled in

mathematics and science on higher education level. The development of the strategic

plan, the development of the higher education information management system as well as

the funding formula for the higher education sector are delayed. It is foreseen that the

funding formula will be implemented in 2012.

Unexpected Outcomes

A new relationship was established with the private sector. The first result of this is a

management development project in the remote Kunene region to improve the

performance of a cluster of schools with a lacklustre record. Other public-private

partnerships for diverse projects like improved performance in mathematics and rentable

rural teacher housing had mixed results. Etameko is a public-private partnership that

provides exercise books to all learners in Namibia and lap desks/slates to all lower

primary learners.

46

Planning was taken to levels never before reached in the MoE with the design of the

programme document and the supporting documents which guided the implementation of

the strategic plan. The team of officials involved in the development of the

implementation plans learned skills in manipulating excel workbooks and calculation

tables and became familiar with formulas, unit costs and projected costs. The ambitious

targets, which initially seemed out of reach, were accomplished. The focus on the

significance of foundation learning improved greatly.

Risks for future

Management of the programme has changed significantly during the first five years of

implementation from a tightly controlled management style to one where responsibility is

shared and accountability held at different levels. There is need to take another look at the

procedures, especially for monitoring and evaluation. The financial management needs

to be tightened to ensure that all funds requested are spent on the intended activities.

Unless the scope of the programme is brought in line with the available funding, several

activities are at risk of non-implementation. There is also risk of losing strategic focus

while responding to legitimate emerging needs.

Assessment of World Bank Performance

Quality of supervision and support

Supervision under the development period and DPL1 was substantive and contributed

greatly to the burst of implementation energy. The significant and sustained inputs of Dr

Mmantsetsa Marope during programme development sparked intense periods of capacity

development. However, the long periods that elapsed when the education sector did not

meet deadlines to complete certain parts of the work led to loss of momentum. The

delays in the signing of the loan agreements did not contribute to maintaining momentum

either. The supervision after Dr Marope left was much less substantial, hands-on and

direct. This could probably be attributed to the fact that no agreement could be reached

on the procurement of re-imbursable TA and the long period between DPL1 and DPL2.

The support received though the many World Bank consultants was top class and with

few exceptions these experts were highly valued and ministry staff were able to develop

many new skills in programme development, reporting and implementation.

Challenges during development and Implementation of ETSIP

Capacity in the MoE was identified as a possible threat to implementation during the

development of the programme and a separate sub-programme was designed.

Unfortunately, this sub-programme did not deliver on its mandate and the only activity

that was successfully executed was the advocacy of ETSIP. Procurement was also

identified as a possible problem and a procurement unit was established and trained.

47

However, this unit, along with the development and implementation of procurement

plans for goods and services faded into non-existence and the MoE resorted to its

procurement practices before ETSIP.

During the design period it was envisioned that sub-programs would pool resources not

only to strengthen programme articulation, but to also realize further efficiency gains.

This did not materialise. Sub-programme managers did not produce organogrammes of

their implementation structures. They articulated implementation arrangements at the

decentralized levels, but not sufficiently. The scope of the programme over-challenged

the implementation capacity of the MoE, especially when strengthening under the

capacity development sub-programme did not take place as planned.

The costing of the programme substantially exceeded available resources. However, the

programme was never reduced in scope or reprioritised to match activities to actual

funding. The simulation model was never used as intended to inform decision taking.

Main Challenges in Further ETSIP Development

The scope of the programme remains a challenge, while programme management,

monitoring and evaluation need to be addressed. A large number of activities can be

removed from ETSIP as they have become routine activities.

The simulation model for ETSIP must updated and used as a tool to help policy makers

make informed choices that will enable them to reach the intended strategic goals within

the available resource packet. Costing will have to be revisited to inform the re-

prioritisation of the programme.

Better clarification is needed on how the ETSIP will be implemented in the decentralized

structures and how funds will flow for activities in the regions. The implementation

structure at the MoE level and regional levels has to be clearly detailed, particularly

regarding managing responsibilities; reporting procedures and operational

responsibilities/authority.

Implementation capacity, not only of ETSIP, but of all the programmes of the sector

remains a challenge.

Special attention will have to be paid to the strategic thrust of the ETSIP which is to

immediately increase the supply of middle and high level skilled labor to meet immediate

labor market demands and to effectively support the long-term strategic development

goal of improving higher value added productivity and consequently, accelerating

knowledge-driven economic growth. Another equally important strategic thrust of the

ETSIP is to progress toward equitable socio-economic development. Neither of these was

achieved in ETSIP1.

48

Lessons Learned

Programme development

A large number of staff members gained skills in designing plans, budgeting, costing,

writing strategic log frames, writing a policy implementation plan, completing and

updating commitment registers and financial reports and designing and presenting

PowerPoint presentations. There is better understanding of the need for baseline studies

and a variety of surveys to be conducted before a project is started. Recording progress

and doing assessment of activities are some of the skills acquired along with computer

literacy. There is more understanding for the necessity of proper planning, induction,

training of implementers and formative and summative planning and evaluation processes.

Reporting

The results framework has been reworked and is almost complete. During the last two

ETSIP review meetings, reporting was done against the indicators. The depth of reporting

has increased and the reporting of non-implementation against the reasons for bottlenecks

and finding solutions for problems has improved.

Development of Terms of Reference and management of Technical Assistance

The procurement of technical assistance went well and inroads were made in capacity

development with regard to the design of terms of reference and the management of

consultants. Most sub-programme teams are now able to develop terms of reference for

the TA they need and have also learned to project the estimated costs and timing of

consultancies. There is greater involvement in the work of consultants and, through the

appointment of counterparts, capacity has been developed.

Development Partner Cooperation (Memorandum of Understanding)

Cooperation with Development Partners is more structured with bi-monthly meetings and

a Memorandum of Understanding to guide ETSIP implementation. There is good

representation at annual review meetings and technical discussions. The establishment of

a sector coordination forum is at an advanced stage.

49

Abbreviations

ACTET Advisory Council on Teacher Education

DNEA Directorate National Examinations and Assessment

ECD Early Childhood Development

EMIS Educational Management Information System

ETSIP Education and Training Sector Improvement Programme

GER Gross Enrolment Rate

GRN Government of the Republic of Namibia

HAMU HIV/AIDS Management Unit

HEI Higher Education Institutions

HEMIS Higher Education Management Information System

ICT Information Communication Technology

LTR Learner Teacher Ratio

MCA-N Millennium Challenge Account Namibia

MGECW Ministry of Gender Equality and Child Welfare

MoE Ministry of Education

NANTU Namibia National Teachers Union

NCHE Namibia Council for Higher Education

NIED National Institute for Educational Development

NTA National Training Authority

OPM Office of the Prime Minister

OVC Orphans and vulnerable children

PPE Pre-Primary Education

PQA Programme Quality Assurance

SATS Standardized Achievement Tests

VET Vocational Education and Training

VETMIS Vocational Education and Training Management Information System

50

Annex 6: Comments of Cofinanciers and Other Partners/Stakeholders

The Education and Training Sector Improvement Program of the Government of

Republic of Namibia was supported by 13 Development Partners. Currently the European

Union is serving as the Coordinating Agency for the Development Partners for Education

the Republic of Namibia. The draft ICR was shared with the EU for review. Detailed

comments were provided as track changes and comments in the Word version of the draft

ICR. The final version of the ICR incorporates almost all of the comments made by the

EU. The comments were mainly related to factual corrections in the document.

The general impression from the EU was that the report is too positive with regard to

equity objectives and achievements. Many systems are still not in place to prompt a more

equitable delivery of quality education. Impression (in the report) is given that ETSIP

was pretty much focusing on equity, while it is not really the case. But overall the

“moderately satisfactory” rating sounds more reasonable than the “satisfactory” ratings of

the past years.

51

Annex 7: List of Supporting Documents

1. Program Document, Proposed First Development Policy Loan in the Amount of

US$7.5 Million to The Republic of Namibia for a First Education and Training Sector

Improvement Program, April 27, 2007 (Report No. 38571-NA)

2. Program Document, Proposed Second Development Policy Loan in the Amount

of US$7.5 Million to The Republic of Namibia for a First Education and Training Sector

Improvement Program, October 8, 2008 (Report No. 45631-NA)

3. Legal Agreements

4. Aide-Memoires (2005-2011)

5. Mid-Term Review Report (ETSIP) – October 2011

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