Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No: 23686

IMPLEMENTATION COMPLETION REPORT(IDA-24930)

ON A

CREDIT

IN THE AMOUNT OF US$52.6 MILLION

TO THE

REPUBLIC OF UGANDA

FOR A

PRIMARY EDUCATION AND TEACHER DEVELOPMENT PROJECT

02/15/2002

Human Development Group 1Eastern and Southern AfricaAfrica Region

This document has a restricted distribution and may be used by recipients only in the performance of theirofficial duties. Its contents may not otherwise be disclosed without World Bank authorization.

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CURRENCY EQUIVALENTS

(Exchange Rate Effective )

Currency Unit = Ugandan Shilling (U Sh)1710 = US$ 1

FISCAL YEARJuly 1 June 30

ABBREVIATIONS AND ACRONYMSCA Continuous Assessmentcc Coordinating SchoolsEPD Education Planning DepartmentEPU Education Planning UnitESAC Education Sector Adjustment CreditEMIS Education Management and Information SystemESIP Education Strategic Investmnent PlanGDP Gross Domestic ProductGOU Government of UgandaGER Grmss Enrollment RateHIPC Heavily Indebted Poor Countries InitiativeHOTS Higher Order Thinking ShillsICB International Competitive BiddingIDA International Development AssociationICR Implementation Completion ReportIMU Instructional Materials UnitITEK Institute of Teacher, KyarmbogoMOES Ministry of Education and SportsMTBF Medium Term Budget FrameworkNAEP National Assessment of Education PerformanceNRM National Resistance MovementNCDC National Curriculum Development CenterNGO Nongovernmental OrganizationsNRP Northern Reconstruction ProjectOED Operations Evaluation DepartmentOS/OC Outreach Schools/ClassroomsPAPSCA Program forAlleviation of Poverty & Social Cost of AdjustmentPAU Policy Analysis UnitPCRs Project Completion ReportPETDP Primary Education Teacher Development ProjectPIU Project Implementation UnitPLE Primary Leaving ExamPRSC Poverty Reduction Support CreditPTC Primary Teachers CollegeSUPER Support to Ugandan Primary Education ReformSWAPs Sector-Wide ApproachesTA Technical AssistanceTDMS Teacher Development and Management SystemTOR Terms of ReferenceUNEB Uganda National Examinations BoardUPE Universal Primary EducationUSAID United States Agency for Intemational Development

SAR Staff Appraisal Report

Vice President: Callisto E. MadavoCountry Manager/Director: James W. Adams

Sector Manager/Director: Dzingai B. MutumbukaTask Team Leader/Task Manager: Paud Murphy

FOR OFFICIAL USE ONLY

UGANDAPRIMARY EDUCATION AND TEACHER DEVELOPMENT PROJECT

CONTENTS

Page No.1. Project Data 12. Principal Performance Ratings 13. Assessment of Development Objective and Design, and of Quality at Entry 14. Achievement of Objective and Outputs 95. Major Factors Affecting Implementation and Outcome 156. Sustainability 167. Bank and Borrower Perforinance 178. Lessons Learned 209. Partner Comments 2310. Additional Information 24Annex 1. Key Performance Indicators/Log Frame Matrix 25Annex 2. Project Costs and Financing 31

Annex 3. Economic Costs and Benefits 33Annex 4. Bank Inputs 34Annex S. Ratings for Achievement of Objectives/Outputs of Components 36Annex 6. Ratings of Bank and Borrower Performance 37Annex 7. List of Supporting Documents 38Annex 8. Letter of Sector Policy 38Annex 9. Borrower's Evaluation: Executive Summary 39Annex 10. Basic Primary Education Indicators 52

MAP IBRD 25052RI

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not otherwise be disclosed withoutWorld Bank authorization.

IMPLEMENTATION COMPLETION REPORTTHE REPUBLIC OF UGANDA

PRIMARY EDUCATION AND TEACHER DEVELOPMENT PROJECT(CREDIT NO. 24930-UG)

PREFACE

This is the Implementation Completion Report (ICR) for the Primary Education and TeacherDevelopment Project for the Republic of Uganda. The credit was approved by the Board of Directors onMay 13, 1993 and the legal documents were signed on June 22, 1993. It became effective on November10, 1993. The total IDA financing is SDR 38 million (US$52.6 million).

The ICR was prepared by Penelope Bender (Consultant) and Harriet Nannyonjo (SeniorOperations Officer, AFMUG), under the supervision of Paud Murphy (Lead Education Specialist,AFTH1), with contributions and support from Debbie Peterson (Team Assistant, AFTH1). It wasreviewed by Bruce Jones (Senior Economist, AFTH1) and then at the formal review meeting.

This report was prepared following a final supervision mission in March 2001, comprising ofHarriet Nannyonjo (Mission Leader), George Bethell (Consultant - Examinations, Ireland Aid), BenjaminMakau (Consultant - Teacher Development, European Union), Lawrence Dowdall (Consultant - CivilWorks, DfID), Victor Levine (Consultant - Education Planning, DflD), Robert Langley Smith (Consultant- Curriculum, DfID) and Tony Read (Consultant - Instructional Materials, DfID). The ICR is based on areview of project documents and reports, discussions with various stakeholders and field visits.

Project ID: P002953 |Project Name: PRIMARY EDUC. & TEACTeam Leader: Patrick D. Murphy TL Unit: AFTH1

ICR Type: Core ICR Report Date: February 15, 2002

1. Project Data

Name: PRIMARY EDUC. & TEAC LIC/TFNumber: IDA-24930Country/Department: UGANDA Region: Africa Regional Office

Sector/subsector: EP - Primary Education

KEY DATESOriginal Revised/Actual

PCD: 11/26/1990 Effective: 09/20/1993 11/10/1993Appraisal: 10/29/1991 MTR: 02/22/1996 09/11/1996Approval: 05/13/1993 Closing: 06/30/2000 06/30/2001

Borrower/Implementing Agency: GOVERNMENT/MOESOther Partners: United States Agency for International Development (USAID)

STAFF Current At AppraisalVice President: Callisto E. Madavo Edward V.V. JaycoxCountry Manager: James W. Adams Francis ColacoSector Manager: Dzingai B. Mutumbuka Jacob van Lutsenburg MaasTeam Leader at ICR: Patrick D. Murphy Nat CollettaICR Primary Author: Penelope A. Bender

2. Principal Performance Ratings

(HS=Highly Satisfactory, S=Satisfactory, U=Unsatisfactory, HL=Highly Likely, L=Likely, UN=Unlikely, HUN=HighlyUnlikely, HU=Highly Unsatisfactory, H=High, SU=Substantial, M=Modest, N=Negligible)

Outcome: S

Sustainability: L

Institutional Development Impact: M

Bank Performance: S

Borrower Performance: S

QAG (if available) ICRQuality at Entry: U

Project at Risk at Any Time: Yes

3. Assessment of Development Objective and Design, and of Quality at Entry

3.1 Original Objective:BackgroundThe years preceding the identification of the Primary Education and Teacher Development Project(PETDP) were years of transition in Uganda. Between 1971 and 1985, the country suffered from civil warand mass murder, the emigration of skilled workers, government mismanagement and economic decay.Schools continued to function only through the efforts of parents and communities. The education sector'sadministrative and management systems were largely inoperative, resulting in extreme scarcities of

instructional materials and insufficient school infrastructure. Government-financed salaries for teacherswere well below acceptable levels (approximately 10% of the living wage), and parents were obliged toprovide supplemental payments.

By the mid-i 980s, the National Resistance Movement was in power, security had improved and primaryschool enrollment had doubled. However, newly recruited teachers were usually unqualified andinstructional materials remained scarce. It was difficult for pre-service teacher education to attractcandidates, as salaries were still low and working conditions were difficult. Teacher and studentabsenteeism were high, infrastructure was often underused and resource management was inefficient.Government recurrent expenditure on education as a percentage of total Government recurrent expendituredeclined in the late 1980s, as did the sector's share of Government capital expenditure. In 1987, the grossenrollment rate (GER) in primary education was 79%. Sixty-five percent of teachers were untrained, andonly about 15% of students had access to instructional materials. During this time, IDA provided fundingfor the restoration of sector infrastructure and the development of institutional capacity through the ThirdEducation Project (Cr. 1329-UG).

In late 1987, the Minister of Education established an Education Policy Review Commission. Its mainrecommendations (Annex 6, Staff Appraisal Report (SAR)) were to:

(i) achieve Universal Primary Education (UPE), defined as universal enrollment in grades 1-5, notlater than 2001-02;(ii) improve instructional quality;(iii) address gender disparities;(iv) strengthen the relationship between schooling and work;(v) add Kiswahili as a compulsory subject in primary school, with the same emphasis as Englishand mathematics; and(vi) increase central Government sector financing and shift it towards the primary cycle, whileshifting parental financing away from the primary cycle.

The Government of Uganda's (GoU) Letter of Sector Policy, issued in 1993 (Annex 8, SAR), had similarobjectives, including attaining UPE by 2003. At this time, external assistance was sought to support theprimary education subsector and specifically to reforn teacher education.

Country Assistance StrategyThe Country Brief of December 1992 indicated that the Bank would assist the GoU in (a) strengtheningmacroeconomic stability through improving revenue collection, better public expenditure management,monetary restraint and a fully liberalized exchange and trade system; (b) improving the climate for privatesector development through deregulation, public enterprise privatization, infrastructure rehabilitation andstrengthening the role of financial intermediaries; (c) strengthening the human resource base by expandingaccess to and improving the quality of education and health care; (d) stemming environmental degradation;and (e) improving the management of external aid. At this time, the Bank was shifting its emphasis fromthe short-term objectives of security, stability and rehabilitation to the support of an economic environmentthat would be conducive to poverty reduction through the promotion of long-term growth and improvedliving conditions.

Other Bank-supported programsFourth Education Project (Cr. 1965-UG)The Fourth Education Project was approved in November 1988 and closed in June 1994, overlapping withthe PETDP. The goals of the project were to: (a) support the GoU's educational rehabilitation efforts;(b) assist the GoU in piloting a revolving textbook fund to ensure the continual replenishment of

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instructional materials; (c) strengthen the units of the Ministry of Education responsible for improving andmonitoring project quality and implementation; and (d) help prepare a more extensive project (the PETDP)to implement the Govermment's emerging sector strategy. The Implementation Completion Report (ICR)found the results to be satisfactory (there was no OED audit).

Program for Alleviation of Poverty and Social Cost ofAdjustment (PAPSCA) (Cr. 2088-UG)PAPSCA was approved in February 1990 and closed in September 1995, also overlapping with thePETDP. Components included the renovation of primary schools, support for orphans and widows,provision of health services, income-generating activities, construction of small-scale infrastructure andwater and sanitation facilities, strengthening of the government's social planning capacities and support forproject administration. This project was rated marginally satisfactory by the ICR, which noted that 76% ofclassrooms constructed were incomplete. OED rated the project unsatisfactory, and called theaccomplishments of the education rehabilitation component "dismal."

Northern Reconstruction Project (NRP) (Cr. 2362-UG)The NRP was approved in May 1992 and closed in September 1998. Its main objective was the short andmedium-term reconstruction of essential economic and social infrastructure in less insecure areas ofnorthern Uganda. Components included highway rehabilitation, telecommunications, education, feederroads, community action, water supply and sanitation, agriculture, and support for coordination,monitoring and evaluation. Education component activities included the renovation of primary schools,teacher training and technical training. The project was rated marginally satisfactory and Bankperformance was rated unsatisfactory by OED, due to design and supervision issues.

Education Sector Adjustment CreditThe Education Sector Adjustment Credit (ESAC) was approved in March 1998 and closed in December2000. It was designed to provide resources to assist the GoU in meeting the challenges of the 1997 UPEinitiative (abolition of school fees/doubling of enrollment). This was to be accomplished through theimproved allocation of public resources, more efficient use of resources, increased availability ofinstructional inputs and improved sector management. The ICR rated the project highly satisfactory, due toits success in providing resources, contributing to policy development and establishing a framework forcoordinated donor support. OED downgraded the rating to satisfactory, due to concerns aboutsustainability and declining educational quality linked to the introduction of UPE.

Concurrent programs supported by other donorsUnited States Agency for International Development (USAID)USAID parallel financing for the PETDP consisted of nonproject assistance and support for theestablishment of the Teacher Development and Management System (TDMS). The Support to UgandanPrimary Education Reform program (SUPER) (US$ 25 million) was to finance curriculum revision in theprimary teacher colleges (PTC); staff reformed PTC and establish activity programs for these institutions;develop a network of coordinating and outreach schools/classrooms (CC and OS/OC); reform pre-serviceteacher education for new teachers; provide in-service professional development for selected untrainedteachers; develop and deliver in-service "refresher" courses for all teachers; train teacher educators("tutors"); and develop and deliver pre-service and professional development courses for Head Teachers.The project began in 1992 and was to be completed in 1999. An additional US$83 million of nonprojectassistance was to have been provided on the condition that the GoU improve teacher compensation andlocal-level decision-making in the sector and provide a sustainable supply of instructional materials. TheGoU was able to meet these conditions and the financing was provided.

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Primary Education and Teacher Development Project (PETDP) ObjectivesThe Government of Uganda intended 'to pursue its long-term objectives (access, quality, and relevance) inthe education sector by reforming the pattern of resource mobilization and allocation in the educationsector, and through appropriate institutional reform and strengthening. Within this framework, the PrimaryEducation and Teacher Development Project sought to assist the Government by monitoring the pattern ofresource mobilization and allocation in the sector, and by financing specific investment expenditure in therelated areas of primary education and primary teacher training (taking into account activities to befinanced by USAID), and in strengthening strategic functions of the Ministry of Education and Sports'(SAR,p. 15).

Assessment of Development ObjectivesThe project was prepared and appraised at a time when Uganda's process of recovery from the prolongedeconomic, social and institutional deterioration of the Amin and Obote II periods (1971-86) was still at anearly stage. Project objectives were consistent with sector priorities at the time and with the broad strategyoutlined in the Bank's Country Brief of 1992. The sector was urgently in need of increased financing, andreallocation between educational levels was a necessary part of increasing access and quality at the primarylevel. The plan to strengthen primary education matched the Government's request for external assistance,as did the emphasis on teacher development.

However, the objectives were vague and failed to fully respond to the GoU's stated decision to implementUPE. First, the objectives focused more on processes than on outcomes. There is no mention of ultimateobjectives (such as "improving access to education"), only of the means by which such objectives could beattained. No targets were given for the first objective of resource mobilization/reallocation. Second, theGoU's policy statements explicitly discussed implementation timetables for UPE that fell within the plannedproject implementation timetable. Despite these clear policy statements, and the Bank's pledges at the 1990World Conference on Education for All in Jomtien, Thailand to support and encourage universal access,PETDP project objectives did not address or even endorse the GoU's UPE goals. This lack of attention anda consequent lack of planning reduced project's ability to respond to the GoU's decision to promote UPEthrough the abolition of school fees when it was announced in 1996 and operationalized in 1997.

RisksThe SAR described four potential risks: (a) unreliable government financing; (b) limitations in Ministry ofEducation and Sports' (MOES) capacity; (c) reluctance of District officials to support teacher educationreforms; and (d) curriculum overloading stemming from proposals in the Government White Paper to addvocationalization, Kiswahili and community service to the primary curriculum. Substantial increases ingovernment and donor financing over the project's lifetime reduced the first risk, and financing ofinstructional materials remained problematic. The second risk proved the most serious, and project designmay have delayed its resolution. The project was complex for a Ministry recovering from years of unrestand decline. The project identification team was aware of this, and developed a short-term trainingprogram financed by the Project Preparation Facility (PPF) to upgrade middle and senior management.Unfortunately, this training program did not continue through the project and staff turnover decreased itsimpact. In addition, the team chose to mitigate the risk by expanding the extra-ministerial ProjectImplementation Unit (PIU). This decision ran counter to the Project Completion Report (PCR) of the ThirdEducation Project, which stressed the 'need to establish and strengthen project management as aninstitutionalized part of the ministry concemed' (1989, p. 14).

3.2 Revised Objective:Project objectives remained unchanged, despite tremendous changes in sector policies and enrollment rates.

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3.3 Original Components:The project had two components: (a) Improving Primary School Teaching and Management and(b) Enhancing Strategic Ministry of Education and Sports (MOES) Functions.

Component 1: Improving Primary School Teaching and Management (US$38.2 million)

The goal of this component was to improve teaching and learning in primary schools. The main activityconsisted of supporting the GoU in the establishment of a Teacher Development and Management System(TDMS) in 10 of Uganda's then 38 districts (there are now 56). The TDMS was to consist of a system ofup to 16 reformed or "core" Primary Teacher Colleges (PTC), each of which would be linked to about 25"coordinating" schools (CC), each of which in turn would be linked to a surrounding network of about 10"outreach" schools (OC). The core PTC were to have four tasks: (a) pre-service training of new teachers;(b) in-service upgrading of practicing, previously untrained, teachers through vacation courses and distanceeducation; (c) in-service training to bring new methods, textbooks and learning materials to teachers in theschools; and (d) management training and support for head teachers. The following sub-components wereplanned:

Subcomponent la included curriculum revision for PTC (Grade III), staffing the PTC and establishingtheir activity program, developing the network of coordinating and outreach schools, conductoag reformedpre-service training, in-service upgrading for selected untrained teachers and in-service refresher coursesfor all teachers; the training of tutors (teacher educators); in-service and pre-service training for headteachers; and establishing a TDMS section in the MOES PIU. IDA financing was designated only forsalary payments and other support for staff working in the TDMS unit of the PIU.

Subcomponent lb consisted of renovating and constructing facilities for PTC, coordinating schools andoutreach schools. 20% of primary school classrooms in the outreach schools of each participating PTCwere to have been renovated, except where this had been achieved by the PAPSCA or the NRP. In total,2,640 primary schools, 200 coordinating primary schools, up to 16 PTCs and one tutor training wing (thiswas changed to two shortly after project effectiveness) were to have been rehabilitated or constructed. IDAwas to finance almost all expenditures in this subcomponent. It was intended that communities wouldprovide some support, through in-kind contributions.

Subcomponent lc consisted of the provision of textbooks and teachers' guides for English, mathematics,science and social studies, in quantities sufficient to achieve student:book ratios of 3:1 in the first fourgrades of primary school. Supplemental reading materials (300 titles for grades 5-7) would also bepurchased and 10 additional titles for these grades would be developed. Sufficient quantities would bepurchased to provide 80 books per school, which were to be managed through book boxes and/or theestablishment of primary school librries. A book management course was to be included in the pre-serviceand in-service teacher training programs. Nine hundred thousand textbooks, 95,000 teacher guides and16,500 sets of supplemental reading materials were to have been provided. IDA financing was to havebeen used for the review of procurement procedures.

Subcomponent Id planned to revitalize private sector publishing and printing. This was to have beenaccomplished through technical assistance, study tours, training courses for the private sector and theNational Curriculum Development Center (NCDC), support for the East African School of Librarianshipand studies and the development of action plans. IDA was to finance all subcomponent expenditures.

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Component 2: Enhancing Strategic MOES functions (US$14.4 million)

Subcomponent 2a was designed to strengthen planning and policy analysis. The Education Planning Unit(EPU) was to have been strengthened through computerization, technical assistance and training and theprovision of equipment; a new National Assessment of Educational Performance (NAEP) was to havebeen developed and conducted every three years; and policy studies for textbooks and secondary educationdevelopment were to have been conducted.

Subcomponent 2b was designed to upgrade management and inforrnation systems through training,materials development, the development of a training and diffusion network using the TDMS approach andthe development of in-service management training to allow the TDMS unit of the MOES to oversee thedevelopment of training at all levels of the system.

Subcomponent 2c was to have supported reforms to primary school curricula and exams. Curricularreform included the development of syllabi for English, mathematics, science and social studies for grades1-4; the development of criteria for textbooks and the training of writers; the writing of textbooks andteachers' guides; the supply of supplementary reading materials for grades 5-7; the training of children'sliterature writers, illustrators and designers; the writing of children's literature; and the procurement anddistribution of the publications for use in schools. Exam reform was to have been accomplished throughthe establishment of national curriculum committees for each examined subject to monitor validity; theintroduction of a system of continuous assessment to ensure the teaching of subjects other than thosetraditionally examined; increasing the number of exam questions testing higher-order cognitive skills;providing detailed feedback to teachers on pupil performance on the Primary Leaving Exam (PLE); andcreating systems of formal information exchange between the Inspectorate, the PTC, the NCDC and theUNEB. A research program was to have been introduced to monitor the qualitative aspects ofexaminations. UNEB's capacity was to have been enhanced through the provision of a new office and asecure printing facility, technical assistance, improved administration and modem equipment.

Subcomponent 2d was planned to increase project implementation capacity. The PIU was to bereorganized with a project manager for each donor-assisted project. The Construction Department was toexpand with the addition of 14 zonal engineers and related staff. Technical assistance, equipment, vehicles,renovation of additional office space and staff salaries were to have been financed.

IDA was to finance all Component 2 expenditures.

Assessment of project componentsComponent 1, subcomponent la: The establishment of the TDMS was directly linked to the project'sobjectives of providing support for primary education and teacher training and of strengthening sectorinstitutions. It was based on three important components of effective schools: school management,teachers and community involvement. However, although there was considerable consultation among thestakeholders, including teachers, to decide what teachers should learn through the programs, this was notlinked to an analysis of common student learning issues or the Ugandan classroom context. The in-serviceprograms were top-down, developed as a set of modules to be prepared and delivered; and programs forpreviously trained teachers were short-term, "one shot" sessions, which were not based on currentclassroom realities. Rather than whole-school approaches, which are generally seen in the literature as thekey to improving teaching and learning, programs were based on improving the teaching practice ofindividual teachers. This vision of TDMS as a "channel to deliver innovations to the field" (project files,May 1999), reduced ownership and relevance of innovations. No formative evaluations were planned orconducted, making it difficult to readjust programs in response to changing circumstances, knowledge and

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results. Indicators for this sub-component were mixed: quantitative targets were provided for mostactivities, but there were no qualitative targets. The project preparation team was aware that the MOES'capacity was insufficient to implement the system and chose to hire external staff to compensate. However,there was no plan for the eventual transfer of management to the MOES.

Subcomponent lb: The design of the construction program relied on extemally financed staff and initiallyused centrally procured materials and supervision (despite difficulties with this system during PAPSCA),and did not plan for long term, sustainable construction mechanisms. Building designs were judgedinadequate partway through the project and necessitated re-tendering for upgrading. Regarding classroomconstruction, plans for community support were unclear in the SAR. The detail that was provided againstemmed from unsuccessful PAPSCA approaches. There were no plans to provide latrines or water, bothof which have been shown to be important factors in girls' access and persistence. Finally, there were noplans for community-based or government-provided maintenance of the new or renovated infrastructure.Indicators were clear.

Subcomponent Ic: Plans for the provision of textbooks and supplemental instructional materials were clearand had the potential to significantly improve teacher practice and student learning. The design of thesupplementary instructional materials subcomponent was based on the importance of expanding children'saccess to print, which, as preparation documents note, is supported by a substantial body of research. Thecomponent emphasized the importance of both narrative and informative text, and of developing a vibrantpublishing industry for young readers in the region. The targeted student:textbook ratio was insufficient(3:1), but would still have improved existing conditions. The plans for book boxes and school librarieswere innovative and could have significantly increased students' access to instructional materials.

Subcomponent Id: Support for the development of private sector publishing and printing was innovativeand comprehensive. However, the multiple titles system, with school-level choice, was ambitious, and it isunclear that the schools and other administrative levels in Uganda had sufficient capacity to manage it, orthat it was the most effective approach to textbook provision (although very valid for supplementarymaterials). Plans for technical assistance and training for publishers, writers and other partners in thesector were also innovative, with the potential to greatly increase local capacity and reduce dependence onforeign publishers.

Component 2, subcomponent 2a: The need to improve planning and policy analysis was accuratelyidentified at the time of project preparation. National assessment is an important part of educationalplanning, and the policy studies were important for the immediate (book policy) and medium-term(secondary education) development of the sector. However, the design included large amounts of long-termtechnical assistance, which put ownership and capacity building at risk, and required the GoU to recruitadditional counterpart staff at a time of civil service restructuring and hiring freezes.

Subcomponent 2b: The project team was aware of the MOES' low capacity in procurement, financing andconstruction and made arrangements to strengthen it through training and technical assistance. However,there was no clear plan for the integration of core functions into the MOES. Plans and objectives providedin the SAR were vague and did not set forth a clear set of activities for improving MOES capacity. TheSAR did not explain the mechanism by which in-service training would occur.

Subcomponent 2c: The design quality of this subcomponent was uneven. The plan to improveexamination quality was exemplary. It was guided by an understanding of the importance of high stakesexams and the difficulty of reforming teacher practice if exam content and approaches do not require orreward changed practice. However, plans for capacity building were based on long-term technical

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assistance and overseas training. The design of continuous assessment (CA) for non-examined subjectswas internally inconsistent: the SAR opposed an expanded curriculum and textbooks were planned only forexamined subjects. In addition, CA was conceptualized as a centralized process. Although there arecertain methods of CA which can be used by all teachers (running records for the teaching of reading, forexample), CA works best when designed and used by teachers to understand and respond to the learningissues of particular students. Curriculum reform was needed, but plans and timelines seem to haveoverestimated the capacity of the implementing units. Plans to train textbook and children's literatureauthors and to provide supplementary reading materials to schools were innovative and could have hadsubstantial impact on student learning.

Subcomponent 2d: Substantial funds were allocated to the strengthening of the Project ImplementationUnit (PIU), which consisted of non-ministerial staff and developed extra-ministerial units, such as theInstructional Materials and TDMS Units. The decision to continue the PIU approach was unfortunate,especially since previous PCR and project experience stressed the need to establish and strengthen projectmanagement as an institutionalized part of the Ministry (see above). PIU staff were involved in everyaspect of the project, diminishing the project's potential impact on MOES capacity.

3.4 Revised Components:Subcomponent lb was revised in the initial years of the project to include two additional PTC, oneadditional tutor training wing and fifty additional CC. These were to have been financed by the FourthEducation Project, but the Ministry was unable to complete them prior to the closing of the credit.Subcomponent lc was revised to extend the purchase and distribution of textbooks to cover all primaryschool grades and to purchase supplementary reading materials for grades 14 to promote early literacy.By 1997, it had been decided to eliminate the purchase of supplementary materials, as USAID funded aninitial purchase and it was later felt that schools received funds for the same purpose through their UPEgrants. It was also decided to eliminate the training and support for publishers, authors and illustrators. Inthe case of publishers, this assistance was declined by the publishers themselves, but that was not the casefor authors and illustrators. While the initial revision of the instructional materials component was highlydesirable, the subsequent revision weakened the initial design and reduced the quantity and variety ofinstructional materials that could have been available for students. Subcomponent 2c was revisedfollowing the introduction of UPE to include grades 6 and 7 syllabi and teachers' guides.

3.5 Quality at Entry:Although the project objectives and activities corresponded broadly to GoU priorities and the CountryBrief, the ICR rates the Quality at Entry as unsatisfactory for the following reasons: (a) the project wasnot designed to support UPE (defined as universal primary enrollment), despite the GoU's announcedintention to move quickly to UPE during the project implementation period, and the Bank's commitment tosupporting UPE; (b) the plan for teacher education was top-down and focused on establishing a complexdelivery system, with no indicators related to improving student learning outcomes; (c) the PIU approachignored lessons from earlier projects, reduced potential capacity-building in the MOES and putsustainability at risk from the beginning; (d) the design of the construction component failed to take lessonsfrom earlier projects into account, continuing approaches which had already been proven problematic; (e)there was no attention to HIV/AIDS; and (f) there were no activities or indicators focused on girls'education. The activities proposed in the SAR were important for the improvement of educational quality,but did not support a larger, long-term vision, which could have made Uganda's transition to UPE lesssystemically traumatic. No targets were given for the objective of increasing and reallocating sectoralresources. Little attention was paid to creating the sustainable systems and processes that the Ministrywould need (possibly including the capacity to successfully outsource specific activities) to continueexpanding and strengthening the system after project closing. The SAR does not describe the planned

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content or approach to teacher education, or its link to improving student learning; it focuses rather on thenumber of institutions to be constructed or renovated and the number of teachers to be trained. Lack ofcapacity in the PIU resulted in significant delays from the start. The GoU did not want significant amountsof technical assistance, but it was included regardless. Finally, the project did not respond to theHIV/AIDS crisis, although the prevalence rate in Uganda for young adults aged 15-19 was 32 percent in1992 (CAS, 2001, p.8). No activities were planned to increase the participation of girls or women beyondthe targeting of districts with low female enrollment, although considerable discrepancies existed in nationalprimary school completion rates and the enrollment rates of many districts, and Government policydocuments and the SAR cited girls' education as a priority. Many monitoring indicators were vague andincomplete, and, in the case of resource mobilization and allocation, nonexistent.

4. Achievement of Objective and Outputs

4.1 Outcome/achievement of objective:The achievement of project objectives is rated satisfactory.Several events which occurred during the implementation period were of such magnitude that it isimpossible to assess project impact in isolation. In 1997, four years after effectiveness, the GoU abolishedschool fees at the primary level and enrollment consequently almost doubled from one school year to thenext. In 1998, the Bank increased its assistance to the sector through budget support (the ESAC) and theHIPC program permitted the GoU to allocate additional resources to the sector. Other donors began toprovide budget support in 2000. To some extent, the objectives and functions of the PETDP weresubsumed by this shift; by 1998, specific activities and outputs which were (or might have originally been)understood as project-specific, were now supported by the national budget, with the PETDP serving as acatalyst in the reform process. PETDP constructed a foundation for continuing reforms in the sector andimproved students' learning environrments through classroom construction, curriculum reform, teachereducation and textbook revision. While PETDP guided ESAC design and created a framework withinwhich policy-based operations like ESAC operated, the impetus provided by UPE and ESAC galvanizedthe new PETDP staff and ensured that the Project moved out of problem status. PETDP performance wasupgraded from Unsatisfactory to Satisfactory after one year of ESAC implementation. Support for theexpansion of primary education came from the highest levels of government and from the donorcommunity, which marshalled substantial additional resources. Intended project outcomes were largelyattained, although some activities were unsuccessful. Activities rated satisfactory accounted for about 60%of budgeted costs and about 50% of actual costs.

In addition, the objective of increased resource mobilization and changed resource allocation was clearlyattained. During the project implementation period, resource allocations to the sector increased andintra-sectoral allocations decreased at the tertiary level and increased at the primary level. Between 1992and 1999, the share of recurrent expenditure (excluding statutory and interest payments) going to primaryeducation increased remarkably, from 33% (1992/93) to 70% (1999/00). Funding for tertiary education asa percentage of the total education budget decreased from 18.5% in 1994/95 to 11.2% in 1998/99. Theprimary education budget as a percentage of GDP increased from 1.3% in 1992/93 to over 2% in 1999/00.

This project demonstrates the difficulty of measuring project impact and assessing project quality.Developments in the sector over the project implementation period far exceeded many of the goals andobjectives set. However, while the project contributed to the creation of an enabling environment for UPE,it could have done more. The PETDP gave satisfactory support to the sector during a period ofextraordinary developments. It remains to be seen if that (and future) support is sufficient for thoseextraordinary developments to be sustained.

4.2 Outputs by components:Component 1: Improving primary school teaching and management: This component is overall ratedSatisfactory.

(i) Establishing the teacher development and management system (TDMS): The quantitative objectives ofthis component were mostly attained and the TDMS framework was established and has attracted muchinternational attention and considerable donor support. Expectations that teaching quality would improveduring the initial years of massive enrollment increases were probably unrealistic. Thus, while the ultimategoal of TDMS, which was the improvement of the quality of instruction at the primary level, was notreached, its existence probably averted an even greater decline in educational quality. TDMS'saccomplishments of linking teacher education institutions with primary schools and de-linking inspectionfrom pedagogical support represent significant, promising shifts in the Ugandan teacher developmentsystem.

As TDMS became operational, demand for access spread from original TDMS districts through the entirecountry. The Bank ultimately supported 10 PTC and an additional 8 were financed by the GoU, the RoyalNetherlands Government and Ireland Aid, providing nationwide coverage. These 18 PTC are linked to 539Coordinating Centers (CC); 298 with Bank support which are in turn linked to 5,000 Outreach Schools(OS). Instead of linking each CC to 10 OS, as originally planned, each CC was eventually linked to 18-20OS. PTC deliver pre-service teacher education and in-service professional development for teachers andHead Teachers. A primary teacher education curriculum, head teacher management training courses and acourse for teacher educators were developed. Curricula for a Diploma in Teacher Education and aBachelors in Teacher Education were revised to harmonize them with other TDMS courses. Of 8,000 headteachers who were to have been trained, 3,863 had received training by the end of the project. 5,223untrained teachers attended courses, of 5,000 initially planned, and 45,784 trained teachers participated inprofessional development (of 63,000 targeted). Of 330 district education officials, 108 received sometraining. 358 outreach staff (including CCT and PTC administrators) were trained. The monitoring andsupervision of PTC has improved. The country now has a nationwide teacher education system withphysical and management infrastructure and trained staff. The role of supervisory staff has changed fromone of inspection to one of pedagogical support, and pre-service programs are connected with schools,improving the quality of instruction in both institutions. Continuous professional development has recentlybeen introduced, improving the connections between teacher education and classroom realities, but itremains unstructured and uninstitutionalized. National and local ownership of the TDMS is strong, and thematerials produced during the project are of high quality. There are anecdotal reports of improved lessonpreparation, student supervision and improved oversight of student work.

However, teaching practice receives mixed reports (no formal evaluations were conducted), with manydocuments indicating declines. Student achievement, according to the available measures, declined duringthe project implementation period. Performance on standardized tests given in 1996 and 1999 to a sampleof third grade students indicates declines in learning achievement; anecdotal observational evidencegathered during the final supervision mission showed that classrooms remain teacher-centered (and thathead teachers continue to believe in the strict supervision of staff as opposed to collegial collaboration).Some of this is undoubtedly linked to the enrollment increases of UPE; TDMS may have reduced thedecline, but was unable to improve student learning. Rates of training program drop out were high duringthe project implementation period: 1997 estimates were 26% for in-service teachers and 18% for headteachers. In addition, the short-term, top-down nature of refresher programs made them less effective.Teacher and head teacher attrition remained high at the end of the project, despite strong demand.

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(ii) Rehabilitating and constructing facilities: Despite initial delays, objectives of this component weremet by the end of the project: up to 16 PTC were planned in the SAR and ten were built or rehabilitated;200 CC were planned and 298 were built or rehabilitated; 2,640 OC were planned and 2,782 were built orrehabilitated. In addition, dormitory facilities for an additional 100 student teachers were added to eachPTC to respond to UPE demands for additional teachers. The quality of construction was acceptable,although substantial upgrading and renovations were required for civil works undertaken prior to 1998 toreach that level. Delays stemmed from the initial choice of an inappropriate implementation methodologyfor OC and CC construction (centralized procurement by the PIU using ICB). These delays increased costsand decreased the motivation of districts and communities. From 1993 to 1998, the centralized system wasmaintained. Starting at the end of 1998, activities were gradually decentralized to districts following PIUguidelines and with PIU monitoring. Community contributions, which were felt to have further delayedconstruction in the most under-served and poorest areas, were eliminated. The decentralized constructionmechanisms which eventually evolved contributed to a sustainable national system of classroomconstruction. However, there were no plans for either a community-based or a government-providedinfrastructure maintenance system.

(iii) Providing learning resources: The desired student:textbook ratio of 3:1 in core subjects was notachieved. The EPD now estimates ratios ranging from 5:1 in grades 1-3 to 3:1 in grades 4-7. The PIU, inits ICR, estimated a ratio of 10:1 per subject for each grade level. Many schools ordered small numbers ofmany titles, due to insufficient support and information during the ordering process. This makes it difficultor impossible for teachers inexperienced with textbooks to use them. The insufficient number of books wasdue to insufficient financing (resulting from the UPE enrollment surge, increases in the price of paper,exchange rate differentials and inadequate allocations), procurement difficulties and delays stemming fromthe curriculum reform process. In addition, the lack of minimum physical production specifications andinadequate storage arrangements resulted in shorter-than-expected book life. Theft of GoU-provided booksand their resale to private schools further reduced the number of books available to public school students(GoU ICR). Despite continued observation of low textbook use in supervision reports and by theInstructional Materials Unit (IMU), there was little mention of the development of mitigating strategies.This was a problem in the Third and Fourth Education Projects, and was raised during project preparation,but it was not solved during the PETDP. Effective use of textbooks remains problematic (final supervisionmission report and GoU ICR). Although 710,256 supplementary readers were purchased (financed byUSAID's SUPER project) and were found in classrooms in 1996, supervision reports state that they werestocked in cupboards and rarely used. They were not found in classrooms during the final supervisionmission in 2001, nor were the plans for their use outlined in the SAR (book boxes, school libraries)followed. Additional purchases of supplementary reading materials were eliminated from project activities,due to the GoU decision to provide funds from materials through UPE district-level grants and difficultyimplementing the book box and library schemes. This decision was unfortunate: despite the UPE grants,readers are not in classrooms. IMU procurement procedures greatly improved during the project and arenow achieving significant cost savings, although the process remains lengthy and books seldom arrive intime for the beginning of the school year. The approach provides school-based purchasing power, choiceand decision-making in combination with benefits associated with centralized bulk purchasing. However, itremains uncertain how IMU activities will be integrated in the MOES. No support was provided for theEast African School of Librarianship, as called for by the SAR.

Revitalizing private sector publishing and printing: Over the project implementation period, textbookauthorship and publishing monopolies ended, a viable and competitive education materials market wascreated, locally established publishing companies (including national, regional and multinationalcompanies) increased in number and capacity, local authors emerged, a new generation of textbooks wascreated and local book retailing increased. Local printing and manufacturing capacity increased somewhat,

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although most educational printing is still done outside Uganda. Primary schools now have a wide choiceof textbooks and supplementary reading materials, increasing competition and reducing prices. Prices havenot fallen as much as expected, owing to school purchasing decisions (see above). Local publishers arguedthat they did not need the training and capacity-building planned by the project, so this activity wasdropped. However, capacity-building for authors of supplementary books and textbook illustrators, whichwas still needed, was eliminated at the same time.

Component 2: Enhancing strategic Ministry of Education and Sports (MOES) functions. Thiscomponent is overall rated Marginally Satisfactory.

Strengthening planning and policy analysis: The PETDP contributed to major policy reforms. Despitefailure to staff the Planning Unit early during the project, substantial staff development did occur during thefinal years of the project when the Unit was finally staffed. The Unit is now fully staffed and operatingwith hardly any TA support. The long-term objective of developing capacity for recurring planningactivities was thus largely achieved, although several areas, notably annual school census and financialanalysis of policy options, and forward budgeting remain problematic. The SAR envisaged a five-yearprocess of ongoing training, but it could not be implemented, owing to delays in staff hiring. The EPU wasto be fully staffed within three months of project effectiveness, but substantive appointments were notinitiated until late 1999 and were not completed until late 2000, seven years after effectiveness.Meanwhile, high turnover in the unit during the earlier years of the Project made it impossible forshort-term training to have long-term impact. The extensive technical assistance funded by the project didnot result in the expected outcome.

National Assessment of Educational Performance/National Assessment of Progress in Education (NAPE)(the name was changed during project implementation): The NAPE was one of the first nationalassessments to be conducted in Sub-Saharan Africa and was the first attempt to systematically establish asystem for monitoring student achievement over time. Four iterations of the NAPE were developed andconducted. The findings of the first three (two iterations of Achievement in Mathematics and EnglishLanguage in 1996 and 1999 and one of Science and Social Studies in 1999) were widely disseminatedthrough stakeholder workshops, and through a variety of creative mechanisms including posters forteachers and students. Results of the fourth study are currently being analyzed. However, NAPE's profileis low, its institutionalization minimal (one UNEB staff member is responsible) and there is little evidenceof impact on teacher practice or on educational policy, despite considerable and varied outreach efforts(workshops, radio programs and poster development and dissemination). No item banks have beenestablished for future tests, nor have assessments been conducted in other subject areas. NAPE staff needconsiderable additional technical assistance and training and additional staff need to be hired.

Policy studies: The book policy study was highly effective in influencing policy, while the secondaryeducation study had only limited impact. The book study directly contributed to the transition from statedomination of authorship, publishing and distribution into a vibrant private sector publishing industry. Awide range of competing alternative textbooks, developed specially for the Ugandan primary curriculum,are now available; all involve local authorship. Conversely, the secondary education costs and financestudy had little discemible impact on policy formulation. The study did not adequately address the issuesidentified in the SAR and the TOR. In addition, the MOES was preoccupied with UPE issues and hadlimited interest at the time in the secondary sub-sector. A third study, Cost Effectiveness of TeacherTraining, was influential in the GoU's decision to increase the efficiency of resource use in teachereducation by closing underperforming PTC.

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Upgrading management and information systems: Although MOES management was strengthened in theproject's early years, through short training courses supported by the PPF, and some study tours wereconducted, plans for continuous in-service training of MOES staff were not implemented, owing primarilyto delays in staffing and staff turnover. At the end of the PETDP implementation period, training for theEducation Management Information System (EMIS) at the central level and all districts was complete. TheEMIS which only became operational towards the end of the Project is now providing needed data forpolicy analysis and planning. For the first time, the Ministry has access to timely annual educationstatistics. Due to the GoU's desire for additional technical advice prior to procuring EMIS computers,computers for the districts were not procured until July/August 2001, after PETDP closed. In the interim,the lack of reliable education statistics, longitudinal data bases and analyses to support planning and policyhad significant negative impact on the MOES's planning.

Reformning curriculum and examinations: At the end of the project implementation period, significantlylater than planned, training of syllabus writers and syllabus development for grades 1-7 had been completedand 30,000 copies of the syllabus for grades 1-4 had been purchased and distributed. However, only onecopy per school, to be shared by 10-15 teachers, was seen in schools visited during the final supervisionmission. In addition, all four core subjects were combined in one booklet, making it difficult for individualteachers to use the syllabus. The teachers' guide for grades 1-4 was produced and will be distributedduring the 2001-02 school year, but the final supervision mission found that "it represents more of achallenge to the teacher than a support" (Curriculum Development Component report, p.2). The guide wasnot pre-tested, nor were PTCs or CCs involved in its development. Although teachers participated insubject panels, they were minimally involved in piloting materials. Training programs for district levelstaff were conducted, but teacher orientation remains minimal, especially regarding the adaptation oflearner-centered methods for large classes. Textbooks to support the new syllabi are not available. Thedelays in curriculum development delayed textbook procurement and examination reform. Coordinationbetween exam design and classroom practices appears minimal: continuous assessment was not fullyintegrated into the curriculum approach, and syllabi for mathematics and social studies do not mention it.Supplementary readers were never produced; nor were children's literature writers, illustrators or designerstrained.

Examination reform: National Curriculum Committees existed for each examined subject prior to theproject, but their responsibilities were unclear. Specific terms of reference were developed during projectimplementation, and committees now review test plans, past examination papers and input from the NCDC,Inspectorate, examiners and schools to ensure the quality of test items and congruence with curricula.Although committee members need additional training, and additional committees need to be established fornew subjects, the committees have contributed to the improvement of examinations.

Continuous assessment (CA) and Higher Order Thinking Skills (HOTS): CA was intended to focus onnon-examined subjects. There were significant implementation delays, and at the time of project closing,CA had been introduced only for examined subjects in grades 5 and 6. It has not significantly influencedclassroom-level practice, owing partly to a lack of information at the school level and delayed integration inthe Primary Leaving Exam (PLE) scoring mechanism (software is currently being modified for the PLE,but still does not include provision for CA). HOTS test items have been introduced to the PLE, but noassessments have been made of student performance on these particular test items nor of any possiblerelated changes in classroom practice.

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Feedback to teachers: The quality of exam reporting has improved. Examiners were trained in reportwriting and standard fornats for reporting student PLE performance were developed. However, the reportsoften go unused at the school level and thus have had little impact on instructional quality.

Systems of information exchange: The UNEB has conducted workshops to increase awareness of itsfunctions and has also developed newsletters and radio and television broadcasts. Past exam papers andexam reports are disseminated to the NCDC and the Inspectorate. There is no formal system ofinformation exchange; rather, information goes out from UNEB to other institutions for their use.

Increase of UNEB capacity: Capacity building was difficult at the beginning of implementation. It wasplanned to send staff for long-term training abroad, but GoU policy changed shortly after projecteffectiveness and training abroad was restricted to short courses. In addition, planned technical assistancedid not materialize for years. Concurrently, design issues delayed the construction of the new UNEBfacility for several years. Original specifications were downsized, resulting in the construction of a facilitywhich, while of high quality, cannot house all of UNEB's staff. UNEB continues to operate from multiplesites, decreasing efficiency and security while increasing costs (three of its five sites are rented). A modemprinting machine was procured and installed at the end of the project, and staff were trained in its use justbefore project closing. Professional staff continue to have limited or no computer access, despite theimportance of computer technology in designing valid examinations and conducting research. Staff reportthat capacity building programs did not correspond to staff needs, and the final supervision missionconcurred that further training in assessment techniques, test-related statistical methods and basic computerskills will be necessary in the near future.

Building project implementation capacity: Although the EPU and PIU were to be fully staffed andoperational within three months after effectiveness, the EPU was not fully staffed until seven years aftereffectiveness. The PIU was fully staffed a year after effectiveness, but there was considerable managementturnover and difficulty during the project implementation period. There were concerns about its "commandand control" approach from the early days of project implementation and about its tendency to hoardresources (primarily vehicles and computers). Thus, although considerable financial and human resourceswere used to strengthen the PIU, these resources did not initially enhance ministerial capacity due to lack ofcoordination. Eventually, post-1998, the project management team was changed and the new team came inwith a high level of professionalism, and achieved significant economies of scale through the high levelcoordination set up between various projects and respective Ministry departnents. This facilitatedintegration of many of the project activities towards the later part of the Project.

4.3 Net Present Value/Economic rate of return:Not applicable

4.4 Financial rate ofreturn:Not applicable.

4.5 Institutional development impact:Institutional development imnpact is rated as modest, although it is difficult to isolate the impact of thePETDP. The project's most significant institutional contribution was the TDMS. The project establishedan integrated nationwide system for teacher development, and a network of teacher educators andeducational practitioners that should support the improvement of educational quality in Uganda for years tocome, if the approach evolves towards one that focuses on improving student learning through ongoing

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school-level support for teachers. Institutional development in other areas was varied. Through evolvingapproaches, the construction program contributed to the development of a national construction program.Textbook procurement processes were considerably improved and should be sustainable, if sufficient skilltransfer from PIU to civil service and/or contracted staff occurs. The project was instrumental indeveloping an EMIS. The EPD is finally beginning to play the role that was envisaged for it in 1993, butdelays greatly reduced the quantity and impact of planned training. The capacity of the UNEB and theNCDC have increased, although both continue to struggle to respond to system needs.

5. Major Factors Affecting Implementation and Outcome

5.1 Factors outside the control of government or implementing agency:Strong macroeconomic performance in the second half of the 1990s and increased international support fordebt relief programs created financial possibilities that enabled Uganda to allocate significant additionalresources to primary education. In addition, external development support increased during this timeperiod. Primary education received 70% of the external financing contributed to the country's PovertyAction Fund in 1999/00. The GoU's decision to move to UPE was outside the control of the implementingagency.

5.2 Factors generally subject to government control:The 1997 announcement that school fees would be abolished at the primary level, almost doublingenrollment from one school year to the next, was the defining event of Ugandan education during the 1990s.Although policy documents annexed to the SAR clearly state the GoU's plans, the actual decision toimplement and the implementation strategy (fee abolition for all primary grades introduced in the sameyear, not phased in year by year as was initially planned) took the sector and the international communityby surprise. The MOES was unable to respond in a way that would have protected educational quality inthe compressed timeframe available. The TDMS was unable to absorb the number of teacher candidatesneeding training; student:teacher ratios quickly became unmanageable; the number and size of classroomswere inadequate and instructional materials were insufficient.

On the positive side, the GoU's commitment to increasing resource allocations for the sector and toreallocating them within the sector permitted the hiring of additional teachers and the continued purchase ofinstructional materials. Strong donor coordination contributed to achievements in teacher education,construction and textbook procurement. The introduction of ESIP in 1998 supported a transition fromdonor-funded projects to a sectorwide approach to educational development. Joint supervision missionsand semi-annual sector reviews facilitated policy dialogue and enabled coordinated responses to evolvingsector issues.

5.3 Factors generally subject to implementing agency control:Delays in staffing key units such as the EPU, in replacing staff who were clearly underperforming, such asin the PIU during the first five years of implementation (although the PIU's performance improvedmarkedly post-1998), and in restructuring programs or elements of programs which were provingunsuccessful, reduced the effectiveness of the project and contributed to its inability to achieve its qualityobjectives (for example, the decentralization of construction procurement did not begin until 1997, fouryears after effectiveness). Lack of procurement capacity in the PIU also caused delays and problems andwas the basis of complaints to IDA during the first half of the project. Most project achievements, otherthan the continuing implementation and evolution of TDMS, occurred during the 1998-2001 period.

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5.4 Costs andfinancing:Despite considerable disbursement lags during the first half ofthe project implementation period (36% inMarch 1996), 90% of credit funds were disbursed prior to closing. Delays were due to procurementproblems, the use of inappropriate procurement mechanisms in the construction component and the lack ofadequate staffing in the PIU and EPU. Construction costs were considerably higher than projected, due toa decision to upgrade design standards and the need to re-tender several sites to ensure adequate quality.The decision to eliminate the funding of capacity-building for publishers, printers, authors and illustrators,and the funding of the purchase of supplementary readers, reduced the financing of those components. The"Strengthening Management and Information Systems" sub-component disbursed only 80% of allocatedfunds, the lowest of all sub-components, with the exception of "Revitalizing Private Sector Publishing andPrinting," which disbursed no funds. The highest disbursing component was "Building ProjectImplementation Capacity," support for the PIU, which disbursed 130% of its budget over the projectlifetime.

6. Sustainability

6.1 Rationale for sustainability rating:Sustainability of project achievements is rated likely. Most project activities have become governmentprograms, are included in the Medium Term Budget Framework and are part of the ongoing dialoguebetween GoU institutions and between the GoU and donors that occurs through semi-annual sector reviewsand bimonthly Education Sector Coordinating Committee Meetings. The GoU remains highly committed toUPE and to the improvement of educational quality and sector management. Government financing ofeducation continues to increase, with the share of government resources in the total budget devoted to theprimary subsector increasing from 20% in 1997/98 to 65% in 2000/01. The elimination of school feesoffset some of these gains, but overall resource flows increased and significant additional resources wereavailable at the school level. The policy environment remains favorable and donor commitment is strong,with continued IDA support planned through a Poverty Reduction Support Credit (PRSC). However, thesector continues to be dependent on external aid (donor assistance to the primary subsector was greaterthan the GoU development budget from 1997 to 2000, although the gap is narrowing (ESAC ICR, p. 28))and consequences would be severe if donor priorities shift or donor commitment to the country declines.Activities which relied on significant numbers of extemally-financed staff may be at risk if staff continuityand/or rapid skill transfer proves impossible to arrange. At the time of project closing, many TDMS staffhad been integrated into the MOES (although not the outreach teacher educators), but it was uncertainwhether and how instructional materials procurement and classroom construction activities would beintegrated. Consultants and technical assistants also played prominent roles in curriculum, planning,accounting/procurement and examination reform, raising concerns about sustainability in those areas.Insufficient civil service staff and the overburdening of MOES and attached units remain a concern forTDMS and UNEB (including NAPE).

6.2 Transition arrangement to regular operations:With the shift from project-based financing to budgetary support, almost all project activities have beenmainstreamed in the Ministry. This may prove problematic, as PIU and other project-financed (andtrained) staff will no longer be available. Continued project-based assistance may prove desirable,depending on the evolution of GoU commitment to the sector and its implementation capacity, but must beintegrated into existing ministerial structures. However, the GoU remains committed to continuing toconstruct classrooms, educate teachers and provide textbooks; in short, to continue supporting the kinds ofactivities that were financed by the project. Sector development in the post-UPE era will require new andmore effective teacher recruitment, classroom construction, textbook distribution and use and educationalplanning, among other activities.

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In the future, the general objectives of the project can be monitored by continuing to pay attention to theallocation of resources to and within the sector, ensuring that rapidly increasing pressure on the secondaryeducation subsector (and, later, the tertiary subsector) does not diminish the resources available to primaryeducation. Significant increases in GoU and donor resources will be necessary for this to work Specificobjectives such as improving teacher education, building, renovating and maintaining classrooms andprocuring textbooks and supplementary instructional materials, especially for the early grades, should bevigorously supported. Classroom construction must continue to decrease in cost and increase in efficiency,and textbooks must not only be procured, but distributed to students and used by teachers. Supplementaryreading materials should be re-prioritized. All of these interventions can and should be implemented andmonitored by the GoU.

External evaluations would contribute both to the improvement of Ugandan education and to sectordevelopment in the region, as many countries are pursuing similar objectives. Currently, a monitoring andevaluation system is in place in the MOES, supporting the Monitoring and Evaluation Working Group.This Working Group has strong donor and Government representation and is implementing a significantprogram of studies and evaluations, including annual reporting on progress towards EFA. It isrecommended that Bank follow-up include evaluations of former PETDP activities, preferably coordinatedwith GoU and/or other donor evaluation efforts. An impact evaluation by OED would be useful and shouldfocus on the impact of project activities on educational quality: teacher practice, book availability and usein classrooms and student achievement.

7. Bank and Borrower Performance

Bank7.1 Lending:Identification/Preparation. Bank performance at identification is rated unsatisfactory. While the projectcorresponded broadly to the objectives of the Country Brief and sector priorities, it did not respond to theclearly stated desire of the GoU to introduce UPE over the period of project implementation. In addition, itis impossible to justify the absence of an explicit response to HIV/AIDS, given the high prevalence rate(32% among 15-19 year olds) at the time of project identification/preparation. No specific activities wereproposed to support girls' education, although girls' enrollment rates in many districts were significantlylower than boys', and there was a significant national gap in primary school completion rates.

Appraisal. Bank performance at appraisal is rated unsatisfactory. Project preparation was lengthy:discussions began in 1989 but the project was not appraised until 1991 and was only approved in 1993.GoU commitment to UPE was underestimated and under-supported, despite the clarity of policy statements,affecting the design of all project components. Despite the recommendations of the Third EducationProject's PCR and experiences during the Fourth Education Project, and the GoU's plans to decentralizeadministration, the project continued the practice of using a project-financed, centralized, extra-ministerialPIU, decreasing the potential for institutional capacity building and limiting post-project sustainability.GoU commitment to the staffing of the PIU and the EPU was minimal (the EPU was fully staffed sevenyears after effectiveness, rather than the three months stipulated in the SAR). In addition,construction-related lessons cited in the PAPSCA audit report, which should have been apparent during theproject preparation period, were not incorporated in the new project. In fact, it was explicitly decided touse the same mechanisms (BTOR, 1991). Classroom rehabilitation was planned, although PAPSCA foundfew classrooms to rehabilitate; top-down methods of site selection were continued despite findings thatthey reduced community ownership; centralized procurement procedures continued to produce delays anddecreased motivation; and centralized supervision continued to be problematic. Some of this was linked to

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Bank procurement procedures mandating the use of International Competitive Bidding (ICB) and anoverriding focus on cost at port rather than cost at point of use.

Additionally, the ICR for the Fourth Education Project found that "higher initial investments for higherphysical specifications, training of teachers in book management and timely provision of storage cupboardscan more than pay for itself with prolonged book life." It also suggested that "impact on education cannotbe fully achieved through physical delivery of textbooks alone. It should be combined with appropriatebook use" (the ICR was published after PETDP effectiveness, but staff should have been familiar with theproject's implementation history). Nonetheless, none of these lessons were incorporated in the PETDP.Performance indicators were not always quantified when quantification would have been appropriate (suchas targets for resource mobilization and reallocation) and qualitative indicators were infrequent and toovague to be useful in monitoring. There were no formative or summative evaluations planned, despite theinnovative nature of several components and the long period of project implementation.

On the other hand, coordination with USAID was built into project design and resulted in achievements inteacher education and textbook production and distribution that would have been difficult to implementwith Bank assistance alone. The TDMS design, particularly its emphasis on linking teacher education toclassroom practice, may yet have significant impact on the teacher education system, teaching practice andstudent achievement.

The appraisal team identified four risks: counterpart funding, MOES implementation capacity, lack ofunderstanding of in-service training and curriculum overloading. Of these, implementation capacity provedthe most problematic. However, supervision missions later identified a number of additional risks: delaysin classroom construction, shortage of qualified candidates for CC tutor positions, lack ofmobility/transportation at decentralized levels, lack of mechanisms for transparency and accountability,lack of guidelines for decentralized implementation and lack of TA skill transfer. These risks could havebeen identified prior to start up and influenced implementation and sustainability.

7.2 Supervision:Bank performance during supervision is rated satisfactory. Supervision missions were frequent andresulted in substantial aide-memoires which contributed to implementation, and dialogue with the GoU wascontinuous. Continuous attempts were made to solve problems when they occurred, although theimplementation of solutions often took months or years, when they were implemented at all. Projectperformance ratings were realistic and frequent attempts were made to underline the seriousness ofimplementation problems. However, turnover in task management may have contributed to delays andinadequate funding made it difficult to provide uniformly adequate supervision across components. Thedecision not to restructure the project following the introduction of UPE is somewhat understandable, giventhe wide range of sector priorities and the project's planned response to some of them, but restructuringcould have increased project focus on key quality and access inputs, and on ensuring the sustainability ofactivities. The task team did develop projections for UPE enrollment numbers, although demand provedmuch higher than estimated. In addition, the decentralization of classroom construction, an emphasis onmoving to double shift teaching where possible, and proposals for a shortened pre-service program weredeveloped by the team, although the only change adapted by the GoU was the decentralization ofconstruction. Restructuring could also have addressed other deficiencies in design such as the lack of aresponse to HIV/AIDS and the negligible attention to girls' schooling issues. It may also have beenpossible for Bank staff to more strongly encourage a reduction in technical assistance and the integration ofPIU functions in the Ministry. The Bank did eventually encourage the GoU to limit TA and to base TAcontracts on skill transfer, insisting upon local counterparts prior to the issuance of no-objections forextemal TA. Bank staff in the Country Office, especially education staff, were very effectively involved in

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supervision, especially towards the end of the project, which increased the Bank's ability to continuouslyrespond to the changing country context and strengthened donor coordination. The Bank respondedflexibly according to changing circumstances, providing support for decentralization, producing projectionsfor UPE in support of MOES preparations and allocating funds to monitor UPE implementation whenrequested to do so by the GoU. The Bank also continuously supported and productively participated indonor collaboration, organizing joint missions, encouraging mission participation from various donors andworking with them to resolve implementation and policy dialogue issues.

7.3 Overall Bank performance:Bank performance is rated satisfactory. Supervision, especially during the latter part of the project wasstrong, enabling the achievement of certain project goals. However, increased attention to student- andclassroom-level issues throughout the implementation period would have increased project impact; andincreased attention to sustainability issues earlier.on could have avoided some of the end-of-projectdifficulties.

Borrower7.4 Preparation:Government preparation performance is rated satisfactory. Substantial policy discussions and relatedstatements were produced, providing guidelines for a decade of sector reform and expansion. Studies wereundertaken in the context of the Fourth Education Project to enhance policy reform and specific activities.The GoU was reluctant to commit to large amounts of technical assistance, although it eventuallyconcurred with the Bank's recommendations.

7.5 Government implementation performance:Government implementation performance is rated satisfactory. Commitment to the sector and particularlyto the primary education subsector remained high throughout the implementation period. The GoUincreased financial allocations to the sector beyond agreed-upon levels, mitigating somewhat the decline ineducational quality related to enrollment expansion. GoU attitudes towards technical assistance changedover the implementation period, with more interest in having TA during the middle and final years,resulting in some conflict with Bank supervision teams attempting to ensure capacity building. Decisionsnot to use multigrade teaching and not to shorten pre-service teacher education reduced the ability of thesector to respond effectively to UPE.

7.6 Implementing Agency:The performance of the implementing agency is rated marginally satisfactory, although it improvedremarkably during the last three years of the project, following a change of Project management team.Delays in staffing the PIU and EPU reduced the impact of project activities, and resulted in substantialdelays in the construction component. Inadequate supervision of construction was linked to materialsspoilage and theft, leading to cost overruns. Procurement was problematic prior to 1998 and the change inPIU staffing, with several cases of near misprocurement and complaints from contractors to the Bank'sExecutive Directors. During the first half of the project, complications with bid evaluation, performancesecurity and delays produced numerous non-performing contracts. Requests for technical assistance variedfrom unit to unit (and TA was refused in some cases), but the TA that was financed did not result in theexpected outcome. Post-1998,with a change in PIU management, project activities, especially constructionaccelerated considerably. The new project team, with effective coordination and management, turned theperformance of most components around and were the primary reason the project attained most of itsquantitative objectives.

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7.7 Overall Borrower performance:Overall Borrower performance is rated satisfactory. It improved sharply post-1998. Despite the manyurgent demands placed on the MOES by the introduction of UPE, project activities accelerated in the lastfew years of implementation and most quantitative targets were met by closing.

8. Lessons Learned

The implementation of PETDP produced a number of important lessons for education and other projects inthe Africa Region and Bank-wide. As mentioned earlier, it is difficult to separate the lessons of PETDPand the lessons of the PETDP implementation period. The project years showed that UPE is attainable, butthat rapid preparatory work is needed to encourage and respond to governmental policy initiatives. Theexperiences of the PETDP era are particularly important in the post-Dakar EFA context, as many countriesin the Region are expected to 'scale up' the goals of their reform programs and the Bank will be expected torespond in efficient and systemically sustainable ways. PETDP highlighted the difficulty of improvingeducational quality and the need to focus on classrooms and teacher-student interaction, especially in acontext of rapid enrollment increases. The 'Ugandan experience' should be studied by other countriesdesigning UPE strategies and by Bank and other donor staff seeking to assist them, to better understandboth what made UPE happen in Uganda and how the transition could have been better managed in order tobetter serve students.

General applicationThe extensive use of donor-financed staff/consultants and long-term technical assistants imperilscapacity building and lowers the likelihood of sustainability. Civil service staff may be less experiencedin project implementation than technical assistants, and activities may consequently require more start-uptime (although, in this case, lack of capacity in the PIU was also a constraint). However, funding used tobuild capacity among line personnel will continue to support sector development after project closing.Increasing responsibility and providing access to resources and short-term, "just-in-time," training can helpnational staff gain confidence, experience, motivation and the ability to implement complex reform not onlyfor the project being implemented but for the entire sector and for the long-term. Terms of reference for allconsultants/technical assistants should clearly indicate skills transfer expectations and timelines. Beyondthe issue of whether PIU staff are civil servants (they were not during the PETDP), the use of a PIUstructure to implement projects reduces the amount of capacity building that occurs and experience thataccumulates in line units. Education and other ministries contain staff who are responsible for the ongoingfunctions of textbooks provision, teacher education and construction, or at least staff who are responsiblefor supervising contractors who work in these area, and those staff should be the focus of training andsupport.

Formative evaluation could be invaluable in keeping interventionsfocused on desired outcomes, andsummative evaluation would provide needed information for subsequent work. Although the TDMS unitconstantly reviewed and adjusted its programs, if it and the instructional materials components hadconducted periodic evaluations during implementation, it might have been possible to better targetinstructional quality and student learning. Summative evaluation results of TDMS, the curriculum reform,examination, construction and other programs would have been useful for the next phase of reform inUganda and for other countries planning similar programs.

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Sector applicationIt may be possible to reach UPE (or close to it) with a few (or one) key decisions. This is the mostimportant lesson of the PETDP decade and it should be a heartening one for countries in similarcircumstances. Uganda showed that the social demand for education is great (at least in Uganda) and thatmost parents will enroll their children if financial barriers are removed and there is a clear signal fromGovernment regarding the importance of education. Complex programs designed to address the sometimespresumed lack of demand were not necessary to reach the vast majority of children in Uganda. Free accessto a classroom and teacher (even, in this case, if both are of minimal quality) led to enrollment. The nextchallenge for the GoU will be to ensure UPC: universal primary completion, for which demand issues mayprove to be more of an obstacle.

The improvement of educational quality requires a classroom-levelfocus on teaching and learningoutcomes. Satisfaction of quantitative objectives, such as the number of textbooks procured and delivered,has little impact on quality unless those textbooks are used by teachers and students. Use of learningmaterials by teachers and students is not straightforward and requires a great deal more attention than itreceived during this project. Similarly, the training of a certain number of teachers, even if that number islarge, will have little impact on the quality of teaching practice and student learning unless that training iscarefully designed, based on classroom realities and provided in an environment of ongoing support. It iscritical to maintain a focus on desired outcomes: increased quality and to continually ask the question"how is this benefitting students?"

Construction and RehabilitationCentralized materials procurement is impractical in countries with inadequate transportation andmanagement systems. The lack of storage capacity at the district level resulted in theft and wastage ofconstruction materials. In addition, coordination difficulties decreased the motivation of schools andcommunities-communities were ready to participate and required materials were not available. Districtownership was nonexistent, as district staff resented their lack of involvement in the decision-maling andprocurement processes.

Teacher Development and Management SystemQuantitative indicators may be important, but they are insufficient to guide policy andprogramdevelopment over the short or long term. Had the TDMS system been more focused on the attainment ofqualitative objectives as well as quantitative ones, connections between training and teacherpractice/student learning achievement might have received more attention.

Education Policy and PlanningBroadly shared ownership is necessary if continuity is to be achieved in rapidly changing environments.While the organization and role of the EPU was clearly described in the PETDP SAR, Ministry personnelinvolved in project design were transferred or dismissed prior to project negotiations. Higher level Ministrypersonnel did not hire replacements. The unit then languished without adequate staff for seven years,leading to ineffective investments in capacity building and incomplete attainment of important objectivessuch as the implementation of an EMIS.

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Policy studies have more impact when designed in response to immediate needs and viewed as a process,not a product. The book sector review was highly successful in changing policy, while the secondaryeducation costs and financing study had little impact. The book sector review was conducted as aconsultative process, supporting an ongoing policy and strategy debates involving the Ministry, donors andother stakeholders. The review also addressed an urgent and immediate problem which was linked to theintroduction of UPE, a government priority at the time. The secondary study was not effective in buildingcapacity and did not respond to felt needs at the ministerial level, where efforts were concentrated onresponding to UPE.

Instructional MaterialsPrivate sector publishers can and will respond to market deregulation, increasing book availability andquality. PETDP created a significant textbook market in Uganda and ended previous state domination ofauthorship and distribution. The number, size, skills and financial viability of publishers with fullyfunctioning offices in Uganda has increased, as has the number of successful local educational publisherswith 100% Ugandan equity.

Schools and teachers need considerable guidance and information during the introduction of textbookchoice. At the beginning of the project, schools tended to order small numbers of multiple titles, making itimpossible for teachers and students to use them effectively. Sample copies were not always available forteachers and headteachers, making it impossible for them to choose the most appropriate titles for theirstudents and leading them to order multiple titles in order to test new materials. This increased costs, dueto smaller print runs, reducing the number of books that could be purchased for the system. At the end ofthe project, textbooks were rare and even more rarely used, due to inappropriate early choices.

Supplementary reading materials require special attention. Despite their critical role in student learning,supplementary materials are rarely found in Ugandan classrooms. In the PETDP, centralized procurementof supplementary readers was replaced by decentralized funding remitted to districts and transferred toschools for school-level purchasing. However, local bookstores did not stock adequate numbers of titles orquantities of books, the system of pre-payment was never established and the usage schemes proposed bythe PETDP were never implemented. As a result, very few students had access to additional materials andstudents in the early grades continue to struggle with literacy acquisition.

Curriculum DevelopmentCurriculum materials must be pilot tested in real schools, by real teachers and real students.Central-level curriculum experts were responsible for developing materials during the PETDP. Datagathered during the final supervision mission indicated that this did not result in the design of relevantmaterials: teachers did not thoroughly understand the underlying principles of the new curriculum andcould not use the methods suggested, due to difficulty in adapting them to large class sizes. The newteachers' guides were found to be more of a challenge than a support for teachers; with language that is tooadvanced, structure that is too complex and insufficient connections with current classroom realities. PTCand CC were not involved in pilot testing, eliminating potential benefits both to their staff (frominvolvement in the design process) and to the materials.

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Teachers need substantive, ongoing support to implement new curricula, especially in climates ofresource scarcity. Professional development for teachers received only 13% of the curriculumdevelopment budget. District councils were expected to pay for cascade-style workshops, but werefinancially unable to do so. Even if they had been able to organize these workshops, the cascade method ofteacher education has not generally been successful. Pre-service teacher education programs should also beinvolved in curriculum development, and were not. Involvement would increase the capacity of teachereducators and prepare new teachers for professional reflection and a wider role in educational innovation.

Assessment systems that help teachers and policy-makers understand student learning are essential. ThePETDP project design included feedback systems to inform teachers about students' exam performance, butthis objective was not attained and would be difficult with a national-level exam. Were continuousassessment taught to all teachers and introduced for all subjects, teachers would have much betterday-to-day understandings of their particular students' leaming, and would be able to design responsivelessons. Policy makers need a broader picture of student leaming to design national and regional levelpolicies. Without this information, it is impossible to base examination reform, national curriculumrevisions or instructional materials on pupil learning issues and/or teachers' instructional difficulties.

9. Partner Comments

(a) Borrower/implementing agency:Annex 9 contains the executive summary of the Borrower's ICR. Following is a summary of the ratings itcontains:

Overall outcome: Satisfactory

ComponentsEstablishment of the TDMS Network: SatisfactoryRehabilitation and Construction of Facilities: SatisfactoryInstructional Materials Unit: SatisfactoryReforming Curriculum:Examination Reform: SatisfactoryStrengthening Planning and Policy Analysis: Satisfactory

Project at Risk at any time: NoQuality at Entry: SatisfactorySustainability: SatisfactoryBank Performance: SatisfactoryBorrower Performance: Satisfactory

(b) Cofinanciers:USAID provided parallel financing for the PETDP, which consisted of nonproject assistance and supportfor the establishment of the Teacher Development and Management System (TDMS). An additional US$83 million of nonproject assistance was to have been provided on the condition that the GoU improveteacher compensation and local-level decision-making in the sector and provide a sustainable supply ofinstructional materials. The GoU was able to meet these conditions and the financing was provided.Collaboration was successful throughout the project implementation period.

(c) Other partners (NGOs/private sector):The instructional materials component supported a significant expansion of the private publishing market.During project implementation, state textbook authorship and publishing monopolies ended, a viable and

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competitive education materials market was created, locally established publishing companies (includingnational, regional and multinational companies) increased in number and capacity, new textbooks weredeveloped and local book retailing increased. Local printing and manufacturing capacity also increasedsomewhat, although most materials continue to be printed in other countries.

10. Additional Information

Not Applicable

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Annex 1. Key Performance Indicators/Log Frame Matrix

Outcomellmpact Indicators

IndicatorlMatrix Projected in last PSR Actual/Latest Estimate

Improve the quality of instruction at the Student leaming has declined, according to No evaluation of teacher practce wasprimary level. available measures. The percentage of third conducted during evaluation exercise.

grade students attaining satisfactory grades Anecdotal evidence indicated that thein math declined from 48% in 1996 to 39% national quality of teacher practice remainsin 1999 and the percentage of students unchanged or has worsened (although itperforming satisfactory in oral English may have declined further without projectdeclined from 92% to 56%. Govemment interventions due to UPE enrolmentand donors are working to ensure that increases). Other anecdotal evidencequality does not deteriorate further. indicates that certain teacher practices,

such as lesson planning, have improved.

Output Indicators:IndicatorlMatrix Projected in last PSR Actual/Latest Estimate

Reform the pattem of resource Between 1992 and 1999, the share of Public recurrent expenditure on:mobilization and allocation in the sector. primary education expenditure increased

from 33% to 70% of total education (a) Primary education as a percentage ofexpenditure. Funding for tertiary education total recurrent public educaton expenditureas a percentage of the total education is 67.4%.recurrent budget decreased from 18.5% in (b) Secondary & Tertiary education as1994195 to 11.2% in 1998199. The primary percentages of total recurrent publiceducation budget as a percentage of GDP expenditure on educaton is 27.5%.increased from 1.3% in 1992/93 to over 2% (c) Primary education budget asin 1999/2000. Primary education costs to percentage of GDP is 2.7%.parents were reduced substantially throughUPE policies eliminating school fees.

Strengthen the strategic functions of the Plans to strengthen EPD were seriously The EMIS is now functioning at the centralMinistry of Education and Sports. delayed but substantial staff development level and in 10 districts. All districts have

occurred during the final years of received training on EMIS, and an annualimplementation. Several areas notably the EMIS cycle has been agreed to ensureannual school census, financial analysis of more tmely availability of data.policy options, planning and informationsystems and forward budgeting remain Initial reports have been produced.problematic. The EPD has evolved into asubstantially stronger body than was initiallyenvisaged.

Upgrade existing primary institutions. 10 PTC completed. 10 PTCs completed.Construction or renovation of up to 16 2,743 classrooms completed. 2782 classrooms completed.PTC. Renovation of 500 classrooms per 298 CC established. 298 CCs established.year. Construction of approximately2.460 new classrooms in each of 8districts. Construction/renovabon ofapproximately 200 CC.

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Indicator/Matrix Projected in last PSR ActuallLatest Estimate

Training of writers and illustrators for Author and illustrator training eliminated as The esUimated student: book ratio is 6:1.syllabus textbooks and children's project activities. Book usage remains problematic, teacherliterature. Procurement and distributon of 6,325,081 professional development in use of

books set in all districts. instructional materials is underway.Greater availability of learning materials. Each school has received two copies of a

textbook management and use manual.Procurement system tested and effectvestudent book ratos established at 5:1 - 8:1per subject Vs 3:1 project target (were4:7-7:1 in 1997 prior to introduction ofUPE).

Enhanced capacity to produce instructional Policy and strategy review completed. Decentralized book procurement tomaterials. Major reforms approved 12/00 significant schools.Policy changes by GoU in areas of textbook market created, state dominationpublishing and tariffs on materials and ended.equipment.

Increase in the number of locally produced Wide range of competing textbook Increased number of Publishers andtifles each year. available, all with local authorship, but little bookstores in the Country. Local publishers

improvement in local printing capacity. now dominate market as opposed toforeign publishers prior to project.

Increased participation in publishing and Courses eliminated as project activities. Several Publishers competitively operatngprinting courses. in the Country.Reduction in dependence on foreignpublishers.Increased employment in the localpublishing industry. _

Increases in the average useable life of Book-life was lower than expected due to New system has improved quality oflocally produced textbooks. minimum physical production materials by giving specific physical

specifications. producton specifications and has reducedunit cost of textbooks at the sometime.

Insufficient quantites.

Reduction in number of PTC to less than PTCs reduced form 64 to 45, and 2 PTCs reduced form 64 to 45, and 2forty. additional private ones due to PTE additional private ones due to PTE

liberalization. liberalization.

Increased average enrollment to about 300 All PTCs have facilities for 300 students. Enrollment is adjusted to demand andstudents per institution, depending on local supply of teachers and the capacity of thedemand for trained teachers. PTCs.

Newly constructed core PTCs havefacilites for 208 students.

Improve the quality and effectiveness of More than 40% of PTC graduates failing Failure rate came down to 26% by 2001.PTC graduates. certifying exams.

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IndicatorlMatrix Projected in last PSR ActuallLatest Estimate

All PTC tutors to complete Grade V 358 attended additional training in Outreach 358 completed training.training. functions. Most of them are University graduates who

specialized in Teacher Education andOutreach functions.

Revision of Grade IlIl Curriculum. - PTE Grade ll Curriculum was revised. - Revised PTE Curriculum now- Curricula for Outreach Tutor Training operational in all PTCs.and Head teachers Management Training - The Outreach Tutors Programmewere constructed. integrated with Diploma in Teacher

Education-Kyambogo University.- Management Training Programmeoperating at Kyambogo University.

Increase in proportion of staff time spent in Following work plans and minimum Strategic visits to schools and synergisticin-service activities. performance standards. performance of educational activities are

now almost a natural routine.

Decrease the number of untrained 5223 unqualified teachers upgraded out of - 3462 unqualified teachers also toteachers. the original target of 5000. complete training in April 2002 in phases iVAnnual increase in number of teachers & V.completing upgrading programme. - A New in-take of about 3000 hasReduction in percentage of untrained started under line MoES.teachers to specified target in the mid-term - 45784 attended nationally conducted - New Plan for Teacherevaluation. Refresher Courses. Development includes framework forUpgrade the skills and effectiveness of - Several other Refresher Courses continuous Professional Developmentpractcing teachers. conducted locally. courses.

Increase in the number of field visits by CCTs in collaboration with area Inspectors Each school is visited at least once perinspectors and PTC tutors in TDMS of Schools make daily routne visits to month. Some are visited twice dependingdistricts. schools following workplan. on the number of schools in the cluster.

Arrangements underway to rationalize PTCPTC administrators and District Inspectors and CC catchments areas and schoolmake frequent visits. clusters to make them more manageable

for more frequent visits.

Improvements in pedagogical practice and Student performance on NAPE declined 'National Inspection Initiative" carried out insubstantive content by teachers in TDMS from 1996 - 1999. 42 of the 45 districts (April 2001) reporteddistricts. very good performance in pedagogical

I____________________________ Iactivites.

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Indicator/Matrix Projected in last PSR ActuallLatest Estimate

Improvements in average student Examinaffons data unavailable. Number of passes has always gone up, butexamination performance in TDMS no data on scrutiny of the quality ofdistricts. performance in line of the TDMS reforms.

Strengthen district and school 81,000 SMC targeted but training was Training not yet effected but 20,000management halted until SMC regulabons are rectified. trainers' manuals and 20,000 users'(School Management Committees). manuals were produced.

Improved community participation through More than 18,000 Volunteer Community Number of schools has grown much biggerParent Teacher Association (PTA) and Mobilizers (VCMs) were trained - an and 2 VCMs have been trained per school.Management Committees in TDMS average rate of 2 VCMs per school. The estimate is that there are about 24,000districts. VCMs altogether.

Improved accounting and reductions in On-head count conducted 3 times. - The CCTs, the Area Inspectors andghost teachers and other anomalies in sub-County Local Councils have containedTDMS districts. this malpractice through constant check

visits.- Staff lists are mounted onnoticeboards for everybody to see.

Improved personnel administration, lower 3863 Headteachers given some training in - Additional 3551 were trained underabsenteeism, and higher teacher morale in Basic Schools Management Skills. Dutch & Irish Grants. Making a total ofTDMS districts. 7414 Headteachers.

- Kyambogo University is preparing forthe next in-take.- Suggestion that training be extendedto other senior staff members.

Up-grade administrative systems. Management training conducted for "National Inspection Initiative" reportHeadteachers and some District Education indicates that there was good managerialOfficials. performance in the administrative areas

handled during management training.

Installation of personnel records, auditing EPD capacity remains problematic. EMIS EMIS now operational at central level andand accounting systems with written not operational according to the original in 10 Districts.procedure manuals and training proposal.computerizabon of all key ministryfunctions.

Upgrade middle and senior management EPD capacity remains problemabc. Local training was conducted at Makerereand key support staff. for most of the staff.Improved managerial practice, higher staffmorale and lower attrition improvedadministraabve efficiency.

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IndicatorlMatrix Projected in last PSR Actual/Latest EstimateEPU (now EPD) has the capacity to carry

Strengthen planning capacity, annual EPU (EPD) had capacity to carry out its out its recurrent activities in school census,execution of school census and recurrent activities - school census, budgeting, school mapping, and educationpresentation or statistical reports budgeting, school mapping, and educaton management information. Annualpreparation of project documents and management information. statisUcal abstracts now produced on Ume.support to donor organizations indevelopment of projects within frameworkof govemments live year investment planimproved policy analysis improvedutilizabon of other data sources (examresults, national census of populaton, etc)for policy formulation improved monitoringand evaluation of development projects.Summative evaluation of investmentprojects with assessment of overall projectimpact

Higher quality and more relevant primary Syllabi developed for grade 1-7(s) in four - Volume 2 of curriculum alsocurriculum. subjects. 30,000 copies at grades 1-4 developed and distributed.Revised syllabus in four core subjects and syllabi distributed but without guidance for - More copies (being printed of bothtwo non-core subject areas. teachers of schools. Textbooks revised. volume for each teacher to have personalRevised textbooks in four core subjects (to Teachers guides in four subjects. copies. Training of teachers on newmanuscript level). curriculum is underway, new book listsRevised teacher guides in six subjects. have been agreed and orders placed.

Improved national examinations andgreater utilization of exam results'revised curriculum.

Continuous Assessment introduced in Same.Introducton of continuous assessment in grades 5 and 6.Schools.

Increased proportion of examination items Test specifications changes. Queston Same.examining higher order cognitive and setters instructed in new requirements.problem-solving skills.

Inclusion of continuous assessment scores Scores not included in overall assessment Same.in overall student assessment and criteria in admission process for higher level offor admission to higher levels of the system.education system.

Upgrade UNEB building and printing UNEB building completed but provides Same.equipment inadequate space. Printing machine

procured but not installed for coreexamining activities, but does includecapacity for incorporating CA scores.

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Indicator/Matrix Projected in last PSR Actual/Latest Estimate

Teacher newsletter with exam results and Examination results provided to teachers - Same.recommendations on improving teaching. impact on instruction minimal.Improved instruction utilizing examinaUionresults.

National assessment of educational National Assessment of Progress in Same.performance, every three years. Education conducted in 1996, 1997 and

1999.

Plans exist for implementing periodicassessment

Expand project implementation capacity, - PIU capacity improved over life of Several officers in line MoES and PIU havetimely project implementation on all project as well as document preparation. attended capacity building courses locallyreporting including preparation of - Ministry capacity uncertain. and abroad.semi-annual and annual progress reports,annual work programmes; and documentsrequired for the mid-term review.

Conduct critical studies and strengthen Studies of book policy, secondaryresearch and analysis capacity, timely education and costs and financing ofdelivery and quality of specific studies, teacher education completed.higher staff morale and lower attritionimproved administrative efficiency. Quality and impact of book study high,

quality and impact of costs and financingstudy high.

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Annex 2. Project Costs and Financing

Project Cost by Component (in US$ million equivalent)Appraisal Actual/Latest Percentage ofEstimate Estimate Appraisal

Project Cost By Component US$ million US$ millionI. Improving Primary School Teaching and ManagementA. Teacher Development & Management System (TDMS) 28.70 29.80 103.8B. Facilities: Primary School/Teachers Colleges & Tutor 23.90 39.30 164WingC. Provision of Learning Resources 27.10 17.60 64.9D. Revitalizing Private Sector Publishing & Printing 0.60 0.70 117II. Enhancing Strategic MOES FunctionsA. Strengthening Planning and Policy Analysis 2.50 2.30 92B. Upgrading Management and Information Systems 2.50 3.00 120C. Reforming Curriculum and Examination 3.90 3.80 97D. Building Project Implementation Capacity 3.00 5.00 166

Total Baseline Cost 92.20 101.50Physical Contingencies 2.60Price Contingencies 9.30

Total Project Costs 104.10 101.50Total Financing Required 104.10 101.50

Project Costs by Procurement Arrangements (Appraisal Estimate) (US$ million equivalent)

Procurement MethodExpenditure Category ICB NCB Other2 N.B.F. TotalCost

1. Works 15.60 3.70 0.00 0.00 19.30(15.60) (3.70) (0.00) (0.00) (19.30)

2. Goods 13.70 2.60 1.00 25.00 42.30(13.70) (2.60) (1.00) (25.00) (42.30)

3. Services 0.00 0.00 10.10 0.00 10.10Consultancies (0.00) (0.00) (0.00) (0.00) (0.00)4. Miscellaneous 0.00 0.00 5.90 25.00 30.90

(0.00) (0.00) (0.00) (0.00) (0.00)Total 29.30 6.30 17.00 50.00 102.60

(29.30) (6.30) (1.00) (25.00) (61.60)

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Project Costs by Procurement Arrangements (Actual/Latest Estimate) (US$ million equivalent)

Procurement MethodExpenditure Category ICB NCB Other' N.B.F. Total Cost

1. Works 17.68 10.46 0.00 0.00 28.14(0.00) (0.00) (0.00) (0.00) (0.00)

2. Goods 6.78 4.00 2.78 25.00 38.56(0.00) (0.00) (0.00) (0.00) (0.00)

3. Services 3.64 3.03 0.00 0.00 6.67Consultancies (0.00) (0.00) (0.00) (0.00) (0.00)4. Miscellaneous 0.00 0.00 0.00 24.00 24.00

(0.00) (0.00) (0.00) (0.00) (0.00)Total 28.10 17.49 2.78 49.00 97.37

(0.00) (0.00) (0.00) (0.00) (0.00)

Figures in parenthesis are the amounts to be financed by the Bank Loan. All costs include contingencies.

"Includes civil works and goods to be procured through national shopping, consulting services, services of contracted staffof the project management office, training, technical assistance services, and incremental operating costs related to (i)managing the project, and (ii) re-lending project funds to local government units.

Project Financing by C mponent (in US$ million equivalent) |_erenag_O_Aprisl_Percentage of Appria

Component Appraisal Estimate Aclual/Latest Estimate lIDA Govt. CoF. IDA Gout. CoF. IDA Go-lI. CoF.

Improving Primary School 4.80 0.00 25.00 4.80 25.00 100.0 0.0 100.0Management & InstructionRehabilitating & 28.90 0.00 1.50 28.40 10.90 98.3 0.0 0.0Constructing FacilitiesProviding Learning 3.80 25.00 0.00 3.60 14.00 94.7 56.0 0.0ResourcesRevitalizing Private Sector 0.70 0.00 0.00 0.70 100.0 0.0 0.0Publishing & PrintingEnhancing Strategic 14.40 0.00 0.00 14.10 97.9 0.0 0.0MOES FunctionsTOTAL 52.60 25.00 26.50 51.60 24.90 26.50 98.1 99.6 100.0

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Annex 3. Economic Costs and Benefits

Not Applicable

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Annex 4. Bank Inputs

(a) Missions:Stage of Project Cycle No. of Persons and Specialty Performance Rating

(e.g. 2 Economists, I FMS, etc.) Implementation DevelopmentMonth/Year Count Specialty Progress Objective

Identification/Preparation07-08/1991 8 1 Senior Educational Specialist,

1 Architect, I General Educator,I Economist, I Teacher

Training Specialist,I Curriculum & TextbookSpecialist,I Examination Specialist,I Human Resource Economist

Appraisal/Negotiation11/1991 6 1 Senior Education

Specialist, 1 Architect,I General Educator,1 Economist, I Teacher

Training Specialist,I Curriculum & TextbookSpecialist

Supervision02/1994 4 3 Education Specialists (of S HS

which 1 Task Manager),I Implementation Specialist

09/1994 1 1 Implementation Specialist S HS10/1995 4 1 Implementation Specialist, S S

I Social Sector Specialist,1 Economist, 1 Consultant

03/1996 5 1 Textbook Specialist, S SI Implementation Specialist,I Social Sector Specialist,I Senior Advisor,I Economist

10/1996 7 1 Senior Economist, I USAID U SConsultant, I ODA Consultant,1 Social Sector Specialist,I Finance Consultant,1 Netherlands Consultant,I Economist

05/1997 4 1 Economist, I Decentralization U USpecialist, I EducationSpecialist, I FinanceManagement Specialist

11/1997 7 3 Education Specialists, U UI Operations Officer,I Procurement Specialist,2 Architects

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07/1998 5 1 Economist, I Program Officer, U SI Architect Consultant,I Financial Analyst, 1 Engineer

11/1998 7 1 Economist, 2 Education U SSpecialists, I Operations Officer,I Procurement Specialist,1 Civil Engineer, 1 Architect

04/1999 8 1 Economist, I Macroeconomic S SSpecialist, 1 Program Officer,I Finance Management

Specialist, 2 ConstructionSpecialists, 1 DisbursementSpecialist, 1 Education Specialist

04/1999 1 1 Operations Officer S S10/1999 4 1 Operations Officer, 1 Senior S S

Education Specialist, I EducationConsultant, I Economist

04/2000 2 1 Senior Education Specialist, S 51 Operations Officer

10/2000 2 1 Senior Education Specialist, S S1 Operations Officer

03/2001 8 1 Operations Officer, I Teacher HS SDevelopment Specialist, I Exams& Assessment Specialist,1 Curriculum Specialist,1 Policy and Planning Specialist,1 Instructional Materials

Specialist, I Architect Specialist,1 Senior Education Specialist

(b) Staff

Stage of Project Cycle [ Actual/Latest Estimate

No. Staff weeks US$ ('000)Identification/Preparation 95.2 221.9Appraisal/Negotiation 64.7 169.6Supervision 218.51 534.60Total 378.41 926.1

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Annex 5. Ratings for Achievement of Objectives/Outputs of Components

(H=High, SU=Substantial, M=Modest, N=Negligible, NA=Not Applicable)Rating

3 Macro policies O H OSUOM O N * NAZ Sector Policies *H OSUOM O N O NAZ Physical O H *SUOM O N O NA

3 Financial * H OSUOM O N O NAX Institutional Development 0 H O SU *M 0 N 0 NA3 Environmental O H OSUOM O N * NA

Social3 Poverty Reduction O H OSUOM O N O NA

N Gender O H OSUOM * N O NAZ Other (Please specify) OH OSUOM ON O NAHIVIAIDS response

LK Private sector development 0 H * SU O M 0 N 0 NAO Public sector management 0 H 0 SU * M 0 N 0 NAOOther (Please specify) O H OSUOM O N O NA

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Annex 6. Ratings of Bank and Borrower Performance

(HS=Highly Satisfactory, S=Satisfactory, U=Unsatisfactory, HU=Highly Unsatisfactory)

6.1 Bank performance Rating

F Lending OHS OS *U OHU3 Supervision OHS*S OU OHU? Overall OHS OS O U O HU

6.2 Borrowerperformance Rating

? Preparation OHS OS C U O HUF Government implementation performance O HS O S 0 U 0 HUN Implementation agency performance O HS O S O U 0 HU0 Overall OHS OS C U O HU

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Annex 7. List of Supporting Documents

1. Staff Appraisal Report, Republic of Uganda - Primary Education and Teacher Development Project,Report No. 10320-UG, March 19, 1993.2. Memorandum and Recommendation of the President of the International Development Association to theExecutive Directors on a Proposed Credit in the Amount of SDR 38 Million to the Republic of Uganda fora Primary Education and Teacher Development Project, March 19, 1993.3. FACT: Financial and Cost Application, Project UG-PE-2953-Primary Education and TeacherDevelopment Project: Labor Costs and Labor Staff Weeks, 1988-1999.4. Development Credit Agreement, Primary Education and Teacher Development Project between theRepublic of Uganda and International Development Association, June 22, 1993.5. Reports: Implementation Supervision Mission, Aide Memoirs, Statement of Mission Objectives,Mid-Term Review, Education Sector Review, Supervision, Back-to Office, Project Status.6. Letter of Sector Policy, 1993.7. Country Brief, Republic of Uganda - Primary Education and Teacher Development Project, December1992.8. Republic of Uganda Primary Education and Teacher Development Project, The Government WhitePaper on the Report of the Education Policy Review Commission.9. Policy Framework Paper, 1992/1993.10. Uganda National Examinations Board, National Assessment of Progress in Education, 1996-1999.11. Implementation Completion Report (IDA-30490) to the Republic of Uganda for an Education SectorAdjustment Operation, June 1, 2001.13. Uganda Primary Education and Teacher Development Project, Summary of Outcome of Negotiations,February 1993.14. Uganda Primary Education and Teacher Development Project, Technical Assistance Reports.15. Financial Statements, Cost Action Plans, Disbursement Status, 1994-1998.16. Uganda Education Sector Joint Government/Donor Review of ESIP, 1999.16. Uganda Primary Education and Teacher Development Project, Summary of Budget, Expenditure andCommitments by Cost Category, June 2000.17. Uganda Primary Education and Teacher Development Project, Quarterly Report April - June 2000.18. Republic of Uganda Ministry of Education and Sports Project Implementation Unit, Status Report,December 31, 2000.19. Republic of Uganda Ministry of Education and Sports, Semi-Annual Progress Report, January - June1995.20. Republic Government of Uganda Monitoring of Learning Achievement Project, October 1999.21. PETDP Uganda Final Supervision Mission, March 2001.22. PETDP Uganda Project Summary Report, April 26, 2001.23. PETDP Uganda Report on the Examinations & Assessment Component, April 2001.24. PETDP Uganda Final Supervision Mission - Report on the Teacher Development & ManagementSystems (TDMS) Component, April 2001.25. PETDP Uganda Project Completion Mission - Review of Education Policy & Planning, March 2001.

Additional Annex 8: Letter of Sector Policy (see attached)

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Additional Annex 9: Borrower's Evaluation: Executive Summary

1.0 SITUATION BEFORE PRIMARY EDUCATION AND TEACHER DEVELOPMENT(PETDP)

1.1 At the time of Independence in 1962 and throughout the 1960s, Uganda had one of the most developedEducation Systems in Sub-Saharan Africa. The political turmoil and wars that characterized the years ofthe 1970s to early 1980s, devastated the education sector. By the time the National Resistance Movement(NRM) Government came to power in 1986, the bulk of the infiastructure (both social and physical), of theeducation system had disintegrated.

1.2 The coming to Power of National Resistance Movement (NRM) and the Primary EducationReform Programme (PERP)

When the NRM took over power, it initiated the Education Reform Programme by appointing theEducation Policy Review Commission (EPRC) in 1987. The EPRC was charged with the responsibility ofinvestigating the Education System and making recommendations for improving the system.

1.3 Findings of the EPRC

The Commission made a lot of findings but for purposes of this report we shall dwell on those pertaining toprimary education, and these include:

* Curriculum was found to be irrelevant to the national development goals and aspirations.* Quality of Education was found to be very poor due to a number of factors, some of which were as

follows: (a) inadequate numbers of trained teachers and therefore dependence to untrained teachers whoformed about 56% of the teaching force; and (b) lack of instructional materials (such as books andequipment).

* High drop out and repetition rates reducing the overall completion rate to about 35%.* Attrition of teachers from the teaching service due to unattractive conditions of service and lack of

motivation.* Out moded and ill-equipped teacher training programmes.* Inadequate accessibility to education due to poor enrollment (only 54% of the school going-age children

were attending school), coupled with regional inequality in access to education and imbalance betweenthe rural and urban areas.

* Gender disparity in enrollment and completion rates. The completion rates for boys were found to beabout 48% while that of girls was 29%.

* Inadequate and poor state of physical infrastructures.* Inefficient utilization of resources characterized by inadequate allocation of resources to the Education

Sector as well as inappropriate allocation within the sector.

1.4 Recommendations by the EPRC

Some of the recommendations of the Commission on Primary Teacher Education which were adopted andincorporated into the Govermnent White Paper on Education were as follows:

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* Review of the Primary Teachers Education (PTE) syllabus to meet the current needs.* Renovation, repair and replacement buildings and equipment in Primary Teachers College as a matter

of priority.* Reduction of the number of Primary Teachers Colleges (PTCs) to a manageable number consolidate

and equip them for the most optimum benefit.* Conducting on-the-job training for the untrained teachers.* Conducting a crash training of teachers to meet UPE demands.* Emphasizing better planned and more equitable distribution of educational facilities in terms of

buildings and instructional materials.

1.5 Interventions to Improve Education Standards Prior to PETDP

In such a situation where education suffered the worst casualty, attempts were made to maintain andimprove on education through localized in-service teacher education. These included Lake Mburo TeacherEducation Project in Mbarara, National Community College at Bushenyi, Mubende Integrated TeacherEducation Project (MTEP), Adventist Rakai Integrated Teacher Education (RITEP) and NorthernIntegrated Teacher Education Project (NITEPP), Development and Relief Agency (ADRA) and several"ITEPs" conducted at various colleges in addition to their pre-service Training Programme. Unlike PETDPwhich came to succeed all these endeavours and handled the reform activities holistically, these projectswere geared to solving one item or aspect of education, leaving the majority of demands untouched.

2. LAUNCHING OF THE PERP AND PETDP

In order to address the above deficiencies in the Education System, the PERP was launched in 1993 withPETDP as the main project to implement most of the recommendation of the EPRC.

2.1 The Broad Sectoral Goals of PETDP

The project was started to contribute to the achievement of the Ministry of Education and Sports (MOES)long term objectives of Access, Relevance, Quality and Equity in the education sector by reforming thepattern of resource mobilization and allocation in the sector and through appropriate institutional reformand strengthening.

2.2 Specific Component Objectives of the PETDP

The PETDP had a number of specific objectives which were implemented through various components.

2.3.1 Component 1: Improving Primary School Teaching and Management

This component aimed at improving the quality of instruction at the primary level by establishing theTeacher Development and Management System (TDMS). TDMS was designed to consist of a network ofCore PTCs within core PTC linked to about 25 coordinating centre schools and each coordinating centreschool linking about 10 outreach primary schools. The original target was to establish the TDMS networkin 10 out of the original 38 districts in Uganda, to support the effort. The objective of this component (ofimproving primary school teaching and management) was quite relevant to the overall sectoral goal ofimproving the quality of education. Nevertheless, the design of the project did not provide for the means ofeither measuring or verifying the impact of the outputs of this component.

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2.4 Sub Component 1 (a) - The establishment of the TDMS network

Under the PETDP, TDMS network was established under 10 Core PTCs with 298 coordinating schoolsand a total of 5000 outreach schools. The number of districts have ended up being 25 instead of 10 asoriginally envisaged because of the creation of new districts within the same project area. The Core PTCsunder the TDMS were supposed to perform a number of tasks namely: (a) pre-service training; (b)in-service training; (c) teacher education curriculum development; and (d) management training for primaryeducation managers (headteachers, PTC Principals, DEOs etc).

The TDMS is a uniquely good innovation of decimating educational services (ideas, policies, instructionalmaterials and facilities), simultaneously in all parts of the country. Through the next work, CoordinatingCentre Tutors (CCTs) who have been facilitated through the project are residents and they operate in allparts of the country offering professional guidance to the teachers and carrying out supervisory andmonitoring work in the schools.

2.5 TDMS Activities (Sub Component)

The above tasks have been executed as follows:

i) PTE (Grade III) Curriculum Development

The aim of this sub-component of TDMS was to revise the Grade III PTE Curriculum, to tum it intomodular form to facilitate the training of in-service and pre-service primary teachers. This task wasexecuted according to the SAR target. Nineteen (19) PTE, five headteachers management training and sixoutreach tutor training self study modules were developed. The relevance of the modules lay in the factthat they afforded the students, the opportunity to explore knowledge and skills and leam on their own.This mark a satisfactory innovation in the teaching/learning process, especially in Primary TeacherEducation Programme.

ii) PTE Service Training for Untrained Teachers

This programme was and has remained the core activity of the Core PTC. It was designed to trainuntrained serving teachers through distance education. This programme is rated as Highly Satisfictorybecause:

* Performance exceeded the targets. Whereas the target was to train 5000 untrained teachers, actually5223 were enrolled and trained, (104.5%).

* The performance of the candidates trained through this programme matches very well with thosetrained through the traditional (pre-service) programme. This enables teachers to remain serving whiletraining, which bridges the shortfall in teachers supply.

* The candidates trained through this programme are willing to remain and service in their remote areaswhere candidates passing through pre-service programme are unwilling to serve.

iii) In-service Refresher Course for Teachers (Continuous Professional Development)

This course which is a continuous programme, was aimed at training practicing teachers and headteachersin the improved use of schemes of work, lesson plans and basic instruction materials methods as well asimparting the trainees with different teaching methods and skills in relation to the curriculum and primary

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syllabus. It was intended that up to 63,000 practicing teachers would undergo training. Under this project,so far 45,784 have been trained. This programme is rated as Satisfactory (72.7%) though there is lack offramework for a systematic coordination of its activities.

iv) Outreach Tutor Training(Complementary Teacher Training Programme)

The purpose of this programme was to enable the Core PTC outreach staff to acquire, internalize andpractice the knowledge and skills they needed in order to training the PTE in-service student teachers. Thetrained tutors have been posted to coordinating schools to work as coordinating centre tutors (CCTs). 358outreach staff including OCs and PTC administrators have been trained. This programme has beeneffective satisfactorily (92.2%) because:

* The CCTs make regular visits in schools in their clusters to offer guidance and monitoring to theteachers (in the classrooms).

* The CCTs compliment the role of district inspectors in supervising and monitoring teaching in schools.The CCTs have been very handy where the supervision function of the education system has beenweak. For that matter the CCTs have played the central role in the TDMS programme and in as far asimproving school learning.

v) Management Training

Management Training for Primary Education Managers including Headteachers, Districts Educationofficials and School Management Committees was to be conducted. The purpose was to increasemanagement capacity and improve primary education standards. So far, out of the target of 8000headteachers (countrywide) 7414 (92.7%) have been trained and out of these, 3863 have been trained underPETDP funding and out of 330 districts officials, so far 108 have had some training. The training ofheadteachers has had a positive effect on the management of the schools. The headteachers themselves,teachers, education officers and school management committees, all acknowledge that there has beenpositive change especially in terms of greater delegation of responsibilities, increase in curriculum andclassroom supervision, more productive approach to school development. For many headteachers however,the challenge remains, with regard to the level of implementation or application of the knowledge and skillsacquired through their training. The performance is Satisfactory.

vi) Community Mobilization

Community Mobilization activity was meant to mobilize parents and local communities to activelyparticipate in improving the quality of their schools and the academic performance of their children. Two(2) Volunteer Community Mobilizers (VCMs) per school have been identified and trained. The impact isremarkably high. Through this programme, a sense of ownership for the TDMS activities was createdamong the communities. This programme was later to prove even more useful when the Universal PrimaryEducation Programme was launched. Parents were mobilized to take their children to school and retainthem in school especially the girls. There is also an increased interest by parents in their children'sacademic performance at school as well as monitoring other school activities. While this was notfinancially considered in the original design, it has made a Satisfactory success.

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vii) Promotion of Girls' Education (PGE)

Promotion of Girls' Education (PGE) was handled by CCTs in collaboration with the District EducationOfficials. The purpose was to mobilize and sensitize school authorities and communities to support girls'education. Girls are also encouraged to persist in school until they at least complete primary school cycle.So far 954 schools in 15 pilot districts have benefited from the Ushs.2013 million disbursed by USAID tostart projects as a strategy to support the girls and disadvantaged children. This campaign has made aSatisfactory beginning, especially under UPE.

2.6 Sub Component l(b) Rehabilitating and Construction of Facilities (Civil Works)

Ten Core PTCs have been constructed under the project. The quality of work is good. The Core PTCsunder went changes in scope in order to improve on the design as well as to provide additional dormitoriesand other facilities to cater for the increased in-take of students. This gave rise to increase the budget.

i) Coordinating Centres

According to the SAR, 200 coordinating centres were targeted to be constructed at 200 schools and later onrevised to 250. With the expansion of the TDMS network, however, 298 (119.2%) coordinating centreswere actually constructed. Also the design underwent changes to improve on the structures. This also gaverise to budgetary increases. This achievement is Highly Satisfactory.

ii) Classroom Construction

A total of 2640 classrooms were planned to be rehabilitated (or constructed). It had been envisaged thatcommunities would be mobilized to contribute resources towards construction. Although communities in afew districts made some contribution, in many districts community contribution was not realized.Additionally due to high demand, the number of classrooms constructed rose to 2782. There was also aneed to improve on the scope for the structures constructed to include plastering and shattering. Althoughthese factors led to an increase in the budget, the achievements were Satisfactory regarding SAR target.

The objective of classroom construction was to improve the pupil learning environment, enable increasedpupil enrollment as well as to reduce the pupil/classroom ratio. However, due to the sudden rise inenrollment of pupils arising from the UPE policy, it was not possible to realize certain aspects like thereduction in classroom/pupil ratio. Therefore, improvement of quality learning remains Unsatisfactory.

iii) Construction of UNEB Headquarters

New buildings to house the headquarters for UNEB were constructed and fully furnished. The quality ofwork was good. Due to inadequacy of the budget, the buildings are not sufficient to accommodate all thefunctions of the institution. A new printery was also constructed, and a modem printing press wasprocured and installed. Although there is yet need for expansion, what has been constructed, according tothe original quotations, is a Satisfactory performance.

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2.7 Instructional Materials Uniti) Component Objectives

The original objectives of the component were to:* Achieve national target ratios in the provision of textbooks and teacher's guides for the four core

subjects in the primary school curriculum as the basis for a significant improvement in educationalquality and learning outcomes.

* Provide national access to a range of supplementary reading materials for P.5 to P.7.* Create a national book market via the active involvement of private sector publishers, printers,

booksellers and book distributors in the process of textbook development, production and supply.* Provide competing, alternative textbooks for all primary school subjects.* Establish school based decision making and school based choice against allocated school budgets as the

basis for textbook selection and to develop school level management and decision making and schoolbased choice against allocated school budgets as the basis for textbook selection and to develop schoollevel management and decision making capacity.

* Review and develop ongoing book sector policy and strategy.

ii) Achievement of Objectives

Between 1995 and 1999 a total of 6,325,081 textbooks and teachers' guides were produced by the IMU toa value of approximately US$30 million. It is difficult to estimate the average level of provision actuallyachieved by the PETDP by March 2001, but informed estimates suggest that the current average level oftextbook provision in primary schools is probably somewhere around 1:10 per subject per grade level.

A significant textbook market has been created in Uganda by PETDP and the previous state domination ofauthorship, publishing and distribution has been ended. The local private sector publishing industry ofUganda has benefited greatly from the establishment of the IMU and the provision of regular book budgets.There has been a marked growth in the number, size, skills and financial viability of publishers with fullyfunctioning offices in Uganda.

The PETDP supported a fundamental instructional materials policy and strategy review, which took placeduring 1999 and 2000. As a result of this policy and strategy review a major program of reforms wasapproved and initiate by the MOES in December 2000, with the full support of Education FundingAgencies Group (EFAG).

Outside Kampala, local printing capacity has developed relatively little. Publishers were free under theterms of the project to select their printing from whatever sources provided the best value for money.Unfortunately, until there is serious investment in upgrading local printing and binding plant anddeveloping higher standards of output and cost and quality control. Ugandan printing will probably alwaysbe at a disadvantage in competition with other more developed printing centres.

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On the positive side the component has delivered a number of extremely important reforms, which willform the basis for a more effective approach to instructional materials which will form the basis for a moreeffective approach to instructional materials provision in the future. In this context, probably the mostsignificant achievement has been the maintenance of an ongoing policy and strategy debate on instructionalmaterials provision between the MOES, donors and other stakeholders, which has enabled the identificationof critical problems and their solutions and the regular adjustment of the component to meet newchallenges. Provision of instructional materials is an on-going process. Its present status of performance issatisfactory.

2.8 COMPONENT 2: ENHANSING STRATEGIC MINISTRY OF EDUCATION AND SPORTSFUNCTIONS

i) Production of Primary Schools Syllabus - Reforming Curriculum

This was done under the auspices of the National Curriculum Development Centre. The production ofPrimary School Syllabus and related instructional materials was based on the proposed Primary EducationCurriculum. This was accomplished with all primary school subjects covered in two volumes and teacher'sguides. Each school in the country has received two copies of each of the two syllabuses and relatedteachers' guides.

ii) Examination Reform

The Examination Reform activities in terms of National Assessment of Progress in Education (NAPE) andContinuous Assessment (CA) were handled by UNEB which also handles all national examinations at alllevels. NAPE and CA deal with improvement of performance of pupils in the core subjects namelyEnglish, Mathematics, Science and Social Studies. These reform activities were handled through trainingseminars and practical activities with the district officials, the outreach staff, headteachers, andcoordinating centres. Total participants were as follows: 200 headquarter staff, 56 DEOs and Ministry ofEducation officials, 56 DISs, 21 Districts Secretaries for Education, 6000 Headteachers and 5000teachers. The impact of teaching/learning process and evaluation is satisfactory.

iii) Strengthening Planning and Policy Analysis under Education Planning Unit (EPU)

Under this sub-component, the PETDP was going to help the Government have EPU strengthened to carryout its recurrent responsibilities. Accordingly, a number of Reform activities were partially being financedby PETDP funds and perforned by EPU. They included:

* Establishment of professional sections of statistics, finance and budgeting, planning and projectpreparation, studies and aid coordination and research and evaluation. Of these, four professionalsections were established, namely: Education Planning and Project Formulation, Budgeting, Research,Monitoring and Evaluation and Statistics.

* Provision of equipment - A number of computers, a vehicle and a photocopier were provided.* Provision of Local and Foreign Technical Advisors for each of established sections. All four TAs were

provided of whom three were foreign and one local TA who handled statistics.* Staff development whereby a good number of staff benefited from short courses, seminars and

workshops, both within and outside the country.* Development of capacity to carry out the recurring activities in EPU. Reports indicate that capacity

was effectively developed to carry annual school census, budget preparation and school mapping forboth primary and secondary schools.

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* The project has funded the design and establishment of the Educational Management InformationSystem (EMIS). The system is now functional throughout the country. EDP is now well-staff andadequately equipped and'is capable of performing its recurrent activities. This component is thereforerated satisfactory.

2.9 The Provision of Logistical Support

The implementation of PETDP included the procurement of various logistical equipment and supplies,which were distributed to various Ministry Departrnents, institutions and districts to facilitate theimplementation of the project activities and reform programmes. These items included the following:

* Facilities to ease the movement including motor vehicles, motor cycles tractors, bicycles and a motorboat.

* Assorted office equipment including Computers, Photocopiers, Cupboards, Filing Cabinets andDuplicators.

* Textbooks and teachers' guides together with other printed materials including modules and charts.* Consultancies and technical assistance to strengthen EPD and PIU, UNEB, EMIS and teachers'

personal records.* Although there were some delays and shortcomings in deliveries, the performance was generally

satisfactory.

3.0 FINANCIAL RESOURCES FOR THE IMPLEMENTATION OF PETDP INCLUDED:

GOU Counterpart Funding US$ 25.OMWorld Bank Credit Funding US$ 52.791MUSAID Project Grant (managed by super project) US$ 25.OMUSAID Non-Project Grant US$ 83.OMCommunity Contribution (estimated) US$ 1.5MTotal US$ 187.291M

4.0 FACTORS AFFECTING PERFORMANCE

The PETDP was started in 1993 and was planned to be completed by 1998. It however ended in 2001.The were a number of factors that impacted the implementation of the project. Although these varied fromcomponent, there were some crossing cutting factors which in general affected the implementation processof the project.

4.1 Managerial Problems

The implementation of the project for the first five years (1993-1998) was beset by managerial problems.The project management at the time failed to cope with the numerous implementation procedures requiredby the Bank. They also failed to create a proper working relationship with the MOES Departments and theother institutions involved in the implementation of the project. As a result, the project stalled. Thesituation however improved drastically with the appointment of the current management in 1998. Thecurrent management brought with it adequate skills, experience with World Bank procedure as well asfamiliarity with the district local government systems. As a result the implementation process gainedconsiderable momentum and the project was completed in June 2001.

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4.2 The Role of the World Bank

In recent years (1998-2001), the World Bank has played a very supportive role. The Bank has been quickin offering "No Objections" and the project management has enjoyed, especially from the Resident Missionstaff, considerable technical support and guidance which enabled the implementation to gain speed after1998. However, during the years before 1998, the Bank's role was characterized by delays andprocrastination in granting "No Objections" and delayed honoring of Withdrawal Applications by the Bankmade it difficult for the project's remittances of funds for construction to the districts, to meet the demandby the contractors; hence leading to delays in construction. However, the Bank performed satisfactorily inguiding and supervising the implementation of the project to a satisfactory completion.

4.3 Some Deficiencies in the Project Design

The project implementation procedures were established before the decentralization system of governmenttook root in Uganda Therefore some of the processes like the procurement of materials and works forclassroom and coordinating centres were initially centralized. However, as decentralization began to takeroot, such centralized procedures of procurement became unacceptable and unworkable in the districtswhere classrooms and coordinating centres were supposed to be constructed. This led to delays in theconstruction of classrooms and coordinating centres. In spite of delays and shortcomings, the end resultswere satisfactory.

4.4 Capacity in the Districts

In 1998 classrooms and coordinating centres construction was decentralized to the districts. The DistrictEngineering Departments lacked adequate capacity to handle works of this magnitude. This led to delays inconstruction as well as poor quality works by the contractors as a result of inadequate supervision.

4.5 Government Role

The Government of Uganda should be commended for meeting its counterpart funds obligation to theproject, despite the tight budget the government always operated. Nevertheless, occasional delays incounterpart funds releases affected the implementation pace, especially the decentralized construction ofclassrooms and coordinating centres which always required regular and large releases of funds to thedistricts.

4.6 Local Communities Contribution

In many districts the local communities embraced this project with enthusiasm and they made commendablecontribution to its implementation. However, in some districts the local communities failed to contributematerials for classroom construction. This affected the pace of implementation of this component. TwoVolunteer Community Mobilizers (VCMs) per school were identified and trained under the CommunityMobilization Component of TDMS. Due to lack of funds to facilitate their activities, many of the CVMsdropped out and those that persisted were ineffective. The assumption that VCMs would discharge theirresponsibilities without any form of facilitation was flawed.

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5.0 THE OVERALL SUMMARY OF PROJECT IMPACT

Although there is so far, no qualitative empirical evidence to prove the impact of the project on pupillearning it has made a lot of undeniable contributions to the education system in Uganda. In this section weshall examine the impact of the various components of the project.

i) Teacher Development and Management System (TDMS)

TDMS was intended to support the effort of Govermnent in improving the quality of instruction at primaryeducation level. The TDMS network has been accepted and adopted as the most appropriate delivery ofthe primary education reform activities. This system will outline the project. To date the TDMS Networkhas been extended to cover the entire country - it is operational in 18 Core PTCs, 539 coordinating schoolsand the entire government aided primary schools.

ii) Reversal of decline in the system

Before the project, the education system had been experiencing a general trend at decline. The system hadbeen characterized by very low levels of government funding, a demoralized and largely untrained teachingforce, as well as very poor physical infrastructure. There was a general level of despondence among thepopulation especially the parents. This trend of invents has been reversed with government allocatingabout 30% of its recurrent expenditure to education and with the introduction of UPE. The bulk of theprimary teachers are now trained, several physical infrastructures (Classrooms and PTCs) have beenconstructed and a sense of hope for the future of education has been created.

The establishment of the TDMS network and the outreach tutor system. With the tutors spread throughoutthe whole country even the school teachers, pupils and the communities in the remotest area can be reached.There are efforts to spread the educational benefits evenly throughout the whole country to all Ugandanchildren. "Increasing access to quality education for all Uganda children".

The establishment of the category of professional outreach teacher educators, who can handle outreach aswell as pre-service educational functions adequately and confidently is a remarkable innovation in TeacherEducation Programme.

Creation of the professionally trained head teachers is a new educational innovation. Reports indicate thatthe head teachers qualified in Basic School Management Skills can make a difference because theperformance of a school is a reflection of the quality of the head teacher.

Distance Learning System in Teacher Education has been introduced to stay because of its inherentbenefits. The beneficiaries, PTE in service students, head teachers and outreach tutors have acquiredadditional profession without any disruption of their jobs and families. The beneficiaries have learned howto study on their own. They were able to learn and apply the acquired knowledge and skills instantly thusproving the effectiveness of the system.

The inculcation of the "this job depends on me" attitude among teachers and learners is strong. Throughprivate study, through doing assignments in groups and individually through training, guidance andcounseling there is a great deal of commitment cultivated in the educational system. This is spilling overinto the society through community mobilization and participation.

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Educational performance has improved. Through in-service training programmes, professionalism hasbeen given momentum. Untrained teachers have acquired professional certification and the qualifiedteachers have renewed their professional obligations through refresher courses and a lot of additionknowledge and skills has been acquired through continuous professional development courses.Consequently, the teachers' classroom performance has improved. The teachers prepare adequately, teacheffectively and mark pupils' work regularly.

Book Supply has made a very big change in education. One of the problems besetting education before thereform was the absence of the instructional materials. Although the original target of the pupil book ratioof 3:1 has not been achieved due to the intervention of UPE which increased the enrollment beyond theexpectations, the estimated number of more than 6,000,000 books are in the field and must have made a bigimpact. However, the negative remarks from the field indicate that the absence of "class-sets" and theguides to the use of the supplied books has failed teachers from using the books adequately.

Construction of classrooms and coordinating centres has contributed to the improvement of learningatmosphere whereby pupils and teachers participate in environment conducive to learning and teachingprocess. The process of the establishment and construction of coordinating centres and the staffing ofthese premises with highly experienced teacher educators who conduct educational activities at the CCs hasaccelerated accessibility by bringing quality education nearer to the people.

Community Mobilization

Community participation and the sense of ownership, is a new yet enthusiastically acceptable phenomenonin educational innovations in Uganda. TDMS has made so much impressive impact on many stakeholderswho appreciate the new mode of educational innovations.

Overall Sustainability

Primary Education remains a major priority area in the Poverty Eradication Action Plan, and therefore, hasbeen given unwavering consideration in the Medium Term Budget Frameworks (MTBF). The majorreform components which started under PETDP, namely Teacher Development and Management,Examination and Assessment, Classroom Construction, Distribution of Instructional Materials,Improvement of Curriculum and Support to Policy and Planning are not only very relevant but they arealso major budget items within the MTBF. These components have been integrated into the variousMinistry Departments and Agencies. However, there is a need to consolidate the Primary EducationReform achievements which have been acquired under the project by developing a reliable monitoring andevaluation system to ensure that the intended school and child-level impacts are actually being attained inthe desired quantities and qualities. The plan for consolidating the improvements in the policy and planningfunctions will need to be strengthened with the Ministry's human resources plan.

6.0 SUSTAINABILITY OF THE EFFORTS (Components) INITIATED BY TDMS

The TDMS has become institutionalized in the various Ministry departments and related institutions. Forexample the ITEK has assumed the responsibility for PTE In-service, Outreach Tutor Training andManagement Training. ITEK is now budgeting for those activities. UJNEB retained the responsibility ofand is budgeting for the Examination Reform activities. NCDC is budgeting for the activities ofcurriculum development. The Ministry of Education and Sports has made budgetary provisions for TDMSdevelopment. The arrangements for sustainability of these reform activities in the post-project period aresatisfactory and the reform will continue.

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7.0 LESSONS LEARNED AND RECOMMENDATIONS

When PETDP was conceived and designed the policy of decentralization had not taken root. As a resultthe districts were not involved adequately in the original design of the project. The implication of this hasbeen the inability of certain districts to appreciate the implementation procedures of the project activities.In the future a more participatory approach which enables the implementators to participate in the projectformulation is recommended.

Institutionalization of the TDMS at the District Level

Although the TDMS has worked out well at the district level, there is no institutional arrangement for itwithin the districts. There is a need to institutionalize the system in the districts or at least formalize therelationships.

Maintenance of Physical Infrastructure

Substantial investment has been put in construction of classrooms, coordinating centres and Core PTCs.Presently, there is no tangible budget either in the districts or in the Ministry itself to cater for the recurrentexpenditure requirements of these structures. There is a urgent need for the govermment to provideresources for preserving this heavy investment.

TDMS coverage to include the private schools

At the moment although the TDMS network has covered the entire country, the private schools are not yetcovered. The pupils in the private schools are therefore not benefiting from some of the TDMS activities.Additionally, out of the 40 Teachers Colleges only 16 have been attained the core PTC status. There is aneed to cover all the primary schools including the private ones, as well as to facilitate all the TeachersColleges.

World Bank Implementation Procedures

World Bank implementation procedures are often lengthy, cumbersome and sometimes difficult to follow.Often they contribute to the delayed implementation of projects. The delayed implementation of PETDPcan be partially attributed to these lengthy procedures. Both the Bank and the government have drawn alesson from this and have opted for budget support system where programmes are implemented followingthe borrowers own procedure.

INFORMATION ON THE PRINCIPAL DATA AND PERFORMANCE RATINGS

A. The Basic Project Data:

Report Date October 2001Name PETDPCountry/Department UgandaSector Sub-Sector MOES (TE, PPE)LC Number IDA-CR 2943-UG

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Region Africa Regional OfficeKey Dates:

PCD - (LESP) April 16, 1993Appraisal March 2000ApprovalEffectivenessMTR July 26, 1996Closing June 30, 2000

Borrower Government of UgandaImplementing Agency MOES (PIU)Other Partners USAID

Staff: Current At Appraisal

Vice President Callisto E. Madavo Edward V. V. JaycoxCountry Manager James W. Adams Francis ColacoSector Manager Dzingai B. Mutumbuka Jacob Van Lutsenburg MaasTeam Leader of ICR Patrick D. MurphyICR Primary Author Penelope B. BenderTeam Leader of Appraisal

B. Principal Performance Ratings:

Principal Performance Ratings are as follows:

Outcome SSustainability SInstitutional Development Impact SBank Performance SBorrower Performance SQAG (if available)ICR SQuality at Entry SProject at Risk at any time No

Additional Annex 10: Basic Primary Education Indicators

BASIC PRIMARY EDUCATION INDICATORS1997 1998 1999 2000

Enrollment (millions)** 5.2 5.8 6.5 6.8ohm in Gov.-aided Schools* 4.7 5.2 5.9 6.1

GER*** 124% 134% 145% 147%NER 100% 100% 100% 97%P1 pupils 1.95 1.66 1.67 1.41Teachers 99,000 108,235 114,118 120,000Teachers in Gov.-aided Schools(Count)* 84,150 99,000 97,000 102000Teacher Establishment 90,000 92,000 110,000 125,000Teachers On Payroll 65,000 94,000Average annual teacher salary $ 733Teachers trained under TDMSTextbooks purchased (4 coresubjects), mill. 2.1 1.5 1.2 2.1Average book price $ 4.70Stock of permanent, completeClassrooms. 25,400 28,400 34,000 51,000

It is difficult to estimate what the average cost has been since the beginning ofUPE. For the future a common construction modality will be followed thatshould lead to an average classroom cost of $ 5,000 (including fumiture and

Average Classroom Cost latrines).Teacher/Pupil Ratio 56 53 60 60Teachers on Payroll/Pupil Ratio 72 65Textbook/Pupil Ratio**** 9 14 5 7Classroom/Pupil Ratio 184 184 172 120Number of Schools piloting aoubleshiftingNumber ot -c looIs pilotingmultigrade% Education/GDP 2.9% 3.3% 4.1% 4.3%Y Education/Recurrent Budget 30% 31%% Primary/Tot. RecurrentEducation 64% 70% 72%% Primary/Recurrent Budget 20% 21% 22%* Approximately 15% of the teachers and 10% of the pupils are in private schools.** These figures are believed to be an overestimation. Staff estimated that the GER and the NER couldrespectively be on average 10 and 5 percentage points higher than in reality.* The GER in 1996 was 0.68 and the NER 0.42 without private schools.**** Until 1999 the ratio was computed assuming a negligible stock at the beginning of UPE, and textbook lifeof three years. For 2000 the PIU provided the ratio.

*Information based on ESAC 2000

- 52 -

AhMNXX 6Page I of 3

REPUBLIC OF UGANDAERIMARY EDUCATION AND EhCHIER DEVEWPMEN7 PROJECT

THE GOVERN-MENT WHITE PAPER ON THE REPORT OFTHE EDUCATION POLICY REVIEW COMMlSSION

1. eTh stances taken by the draft Governmeit White Paper on ImDlementation of theRecmmendations of the Reron of the t-ducation Policy Review Commission on major issues areJ follows:

Concerning KM, the objective is to achieve Universal Primary Education not later thanthe year 2001/02. Local district anm urban authorities will continue to be responsible forprovision of physical facilities. and local communities wiJl be !nobiized to providenecessary labor and materials.l. In order to relieve household financial constraints toenrollment, tuition at the primae level would be progressively abolished, one grade at atime, beginaing in 1992/93 and to be completed by 1999/2000 School attendance wouldbe compulsory for those grades for which fees bave been abolished.

The uLaix of instructio-. would be impro-ed by expanding the supply of textbooks andother instructioril materials. increasing teacbers salaries so that teachers can devote fulltime to the teaching job. and strengthening both pre-service and in-service teacher training(mcluding training the large number of untrained teacbers). The National CurriculumDevelopment Center and the Uganda National Examinatioas Board wiJl be provided withadequate facilities, and otherwise strengtheied.

In order to address render disvarities, incrtased training of females as teachers andadministrators wiJl be undertaken, adequate facilities for girls will be provided in post-primary institutions, and eiLher the Head or Deputy Head of a co-educational schoolshould be a woman. In addition, the abolition of primary tuition mentioned above isexpected to especially facilitate girls' earollnent.

The relationship between schooling and the world of work will be strengthened byvocationaization throughout the primary and secondary cycles. The primary curriculumwDll be revised to include agriculture and other pre-vocational skills, with a view towardenabling individuals to make a living. All secondary schools would eventually becomeComprehensive Secondary Schools. offering )oth academic and vocational subjecs.

V Unsw do IDA4miUd Pmgamn to A1:cviatc Povut ud thw Sociai Coa of Adjufnmw (PAPSCA) and Xw IDA-aid oaim Ugaun Ronajuccon Pajcct (NURP). du Govemrt ua pmWing ky aAdml *1e. mach a

w_ laW piva. i, awo aa. to com'mnuAe on a grn basi.

57 ANNEX

Page 2 of 3

Concerning lanzug policy, Kiswahili, whicb presentld is offerei as an elective at somesecondary schools but is oot part of the primary curriculum, would be added as acompulsory subject throughout the primary and secindary cvyles, to be given equalempbasis wvith English and mathematics. 2'

Tbe financinjj strategy of the White Paper is to increase Central Govermnent budgetaryfunding for the education sector; shift the distribution of Government expenditurerelatively toward primary, away from secondary and tertiary; and shift the distribution ofparental/beneficiary expenditure relatively away from prirnary, toward secondary andtertiary.

2. IMA welcomes and endorses most of the policies announced in the White Paper. Inparticular. IDA endorses the shifts mentioned above in the distribution of Govermnent andparental/beneficiary expenditure; this is consistent with Bank views as set out, for example, in thePolicy Paper on Primary Education. The initiatives to improve quality through improved teachertraining and compensation, and to address gender disparities, are also appropriate and welcome.

3. However, the IDA staff have concerns about some of the White Paper proposals regarding*vocationalization'. At the primary level, the White Paper recommends that occupational tainiaigleading to employment should be a part of the curriculum. Wbile IDA endorses the need to relateprimary curriculum to the surrounding eaviroanment, especially in the teaching of science,mathematics and social studies, IDA does not endorse costly occupational training to children whoare unlikely to be of age for gainful employment nor fully equipped for the tra-s,ition to work attbe end of the primary cycle.

4. At the secondary level, studies of *diversified- or 'comprehensive' curricula in Tanzania,Kenya, and other countries have found that such voca;ionalized curricula are more expensive thangeneral secondary education, and that graduates of su:b programs usually did not obtainemployment in fields in which they were trained, and did not receive economic benefits from theirmore cost schooling. In other words, such programs are ineffective from the cost-benefitperspective. The trend in developing countries bas therefore been toward structural separation oftrz!ning from general educatior.

S. The Bank's Policy Paper on Vocational and Technical Education and Training (VEI)emphasizes that providing young people with literacy. numeracy, and problem-solving skills, sothat they are trainable, is the best contribution that schools can make to the productivity andflexibility of the work force, and that practical dkills are most effectively acquired in workplaces,or in post-general education, non-workplace training facilities, which are 'demand driven'.

6. The r1nancing chapter of the White Paper reflected an expectation that the Governmentrevenue performance would increae to '16-20% of GDP in the near future.' Unfortuately,Governm:nt revenues have failed to increase as rapidly as boped e.'l'er. In the PolicyFramework Paper for 1992/93 - 1994/95, Government revenue i, shuwn as 7.3% of GDP in1992/93, 9.8% of GDP in 1993/94, and 11.6% of GDP in 1994,95. La this context, the Bank

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A-%NEX ao l Page 1 of 668/ u MINISTMY OF FDrA4CE AND ECONOMIC

Ifl.6.g Un, . a nave. PLANNING.or,, Ma7A P.O I BOX 1147.

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16 April 1993

Mr. Ed-mar.Vt'X. JaycoxVice President, Africa RegionThe World BankWASHINGTON

Dear Mr. Jaycox

RE: LETTER OF EDUCATION SErTOR POLICY

Tne purpose of this letter is to describe the education sector policies that we plan to followduring the implementation of the proposed Education Reconstruction and Development Project(IDA V). Specific actions ar included in the attached Action Plan.

Overall Develgpment Strategy

in recent years, the Government of Uganda has been implementing-a program of stabilization,economic recovery, and structural adjustmenL Our most recent statements nf developmenfstrtegy are in the Way Forward I and Way Forward n (1992), dealing with macroeconomic andsectoral strategies rspectively; and the Policy Fmmework Paper for 1992/93 - 1994/95(November 1992), which has already been circulated to the World Bank's Board. As indicatedin these statements, the role of public institutions will be to establish the infrastructure andpolicy environment conducive to private sector development. The ongoing process o'libenlizadon, defined as 'moving toward policies which work through markets", will becontinued. We intend to further reduce bank financing of the Govnmrent budget deficit, inorder to retduce nlation. Our public expenditur strategy is to concentate expenditure on thoseactivities in which Government must play a leading funding role, and ensure that expenditureswithin priority sectors are cost-effective.

Addidonally, in October 1992 the Decentralization progrm was launched by the President ofUganda. As part of this program, control over field personnel will be shifted from CentralGovemment ministries to the local authority.

62 ANNEX OPage 2 of 6

Beginning with the 1993/94 financial yea, district votes wi". tbc crated in the natonal budgetinitially for thirt (13) districts so that recurrent expenditure for field-basid sences wiU besent to the Distrct directly, with the District Executive Secretary becoming the DistrictAccounting Offc. Ministry Hesadquarters will be sammliinid to a core of policy maken ,p!aancr, and inspectors.

FAucation Sctor Polic

Like mott othe sectors, Uganda's education system suffered substantially between 1971 - 1985.Following the restoation of peace in 1986, the Government initiated the process of reformingand rec the education system by estblishing an Education Policy Review Commissionin 1987. Th Commission submitted its Report in 1989. A short smtement on Education Policyhas been included in The Way Forw_d II S c 1 Straty (1992). In addition, a detailedGovernmnent White baer on TmDlemnentadion of fth Recommendatiocs of the Report gf theFAue2tion Policy Review Commission has been dnfted and presently is under discussion withinthe country, befor eentual adoption. The prncipal objectives and policies which we intendto pursue in the education seetor are decribed below.

We wish to incrase the population's aca to education. In particular, at th primary level,the objective is to achieve Universal Primary Education by the year 2003. Local distric6 andurban authorties will continue to be rponnble for provision of physical facilidies, and localcommunides will be mobilized to provide necessary labour and iocally-available maeials. Tbe(alornmrmt is prvirding key strueturl elementr, cuch c tn m ac nd plvmisd ia shu, hwlocal communiie, on a grant basis. We have been increasing Centml Govment budgeuaryfunding for prmary educadon, and this taed will -^;ndnue, enabling primary tuidon feseventally to be reduced, thereby relieving the household financial constaint to enrollmentespocially for low income families. We place very high priority on Improving the giiaEt ofinstruction. This will be accomplished by expanding the supply of setbooks and odherinmuctional materials, increasing teachers' salaries so that teachen can devote full tme to Xtteaching job, and strengthening both pr-sernce and in-service tesching tining (inctudingtraining the lare number of untrained teachers). Finally, we wish to strngthen the relationshipbetween education and the job environment thrugh vocational progrms.

We intend to pursue these objectives by reforming the pattern of resource mobilization andresource allocaen in the sector, and through appropriate instdtutional eform and strengthening.

At the prsent time, ducation subsidies (diffemnces between the price charged for the service,and the cost of producing the service) are gratest at the university level, relatively less forswcondary duc*jon and primary teacher trining, and least at t!ie primay level. This isinequitable, sine post-primary students, especially at the jniversity ;evel, tend to come minlvfom rlatvely better-off households. At the primary level, the burden of fees leads to schooldropout, parclly among girls from poor households who ar sometimes puUed out of schoolwhere the parents cannot afford fees for all the children. At poSd-pima tevsk the primted Infdher aucation y cr%Vce dt e acrnts-thLotantfsuial( con tw the coo producing

ibm= In other words, untargetted across-the-board subsidization will be substantially reduced.

ANNEX 863 Page 3 of 6

Concessional financing ( :nts or concessional loans) will be provided to poor but meritioussUixasts to enable them to enroll at these levels of the system. Boarding subsidies at thesecondary level have already been discontinued, and boarding subsidies at the university levelwill be progressively ph& ;d out. The increased mobilization of resources from students andtheir oaets at post-rm&ay levels will allow 2 greater share of Central Govemnment exoendiiz,Ca b~ dvo=d no dmlar 4iucAiujj, which is cridcally Important because of its economic andsocial beseft.

Trained teachen who can devote adequate time to their teaching responsibilities are an essentialelement of the education -ocess. Dudng the past two yeas, the Ministry of Education and thebMinistry of Public Service, with the assistance of the Establishment and Staffing Control SystemPrqect, have bM engag_d in an effort to accurately determine the number of trained anduntrained teachers actually perforning teaching duties, and to ensure ihat the teaches' payrollis restricted to such pesons. A census of the Teaching Service was carried out in 1991.However, for some districts in the North and Northeast, it was necessary to rely on estimatesdue to insecurity in some areas. During the time since the Census was conducted, there havealso bee staffing changes such as recruitment, transfers, and retirements. Following theCeuus, the number of persons on the Teaching Service payroll has been reduced from morethan 120,000, to about 114,900 at t.e present time, of whom about 92,500 are primary teachers.Thee same numben will be the basis for the Budget esdmate for the Teaching Service payrollfor the 1993/94 financial year.

On the basis of questionnaire forms filled out by teachers, a computerized Database on teachershas bLn established. During the period May 1993 through December 1993, officials will makefidd visits to schools, assisted by local leaders, to audit and ediminate any discepancies,including physical count of the teachers and school facilities. This wiln be done on a Districtby District basis, four districts per month. Following the audit and verification exercise, a.District Establishment Register, in which each post has a unique post control number, will beestablished in each district. The Teaching Seowice Staff Register,-.which is required by theEducation Act. has recently oecn computerized, including attaching a unique staff number tocach narne in the registcr.

Berining with the 1994/95 iinancial year, ceilings will be esta!,iished for each financial yearfor tht number of primary toukaan whAsc, La.;. ,11 l. 1m. Gnaiicd Luti ite ecniral uovernmentbudgeZ. In the determination of thcse ceilings, the following factors will be taken into account:(a) Govenmat's monetary and fismit program which, u mcntioned earlier, nimi at reducinginflation by lowering the budget deficit; (b) the priority to be given to upgrading untrainedteachers; (c) the objective of incresing teachers' nmuneiatioi; and (d) he long-term objectiveof achieving Univeral Primary Educadon. During the next few yean, priorty wi11 be devotedto upgrading of trainable untninod toaohers, and to a hieving the M61iliauiluivigig Wage.Raspoeslbility for hiring, promotion, and dismissl of primay school teachers in U7 and UBsaly scla will rst with the District Teaching Service CommitLec. The reuitment anddiscpline of prmary teachers in U6 saluy scale and above and all the teachers in the TeachingService is the responsibility of the Teaching Service Commission. Beginning with the 1993/94financial year, funds for the primary teachar payroll will be transferted Jvlly rurini theTreasury to the District Executive Secretary.

ANNEX 864 Page 4 of 6

Li order to improve teaching quality, the Government plans to reorient teacher trining from itscurrent emphasis largely on pre-service training, to a more balanced three-pronged program ofpre-srvicc training, upgrading of unqualified teachers, and in-service twaining. The Priff&aryTeachers Colleges to be financed under the Project will operate within a policy framework whichprovides approprate institutional autonomy and accountability. Responsibility for hiring,promotion, and dismissal of Primary Teachers Colleges staff will rest with the Teaching ServiceCommission. As regards financial contribution by students in the Primary Teachers Collegestowards feeding costs and other expenses, the matter is tbeing nationally examined, but the policyof Primary Teachers Co11eges boarding will take into account the policy for boarding at post-secondary instinttions generally. All institutions are to embark on income generating activitiesto generate revenue to support the teachers, students and other staff members. Tnis wouldsupport effofts t6 pay a Living Wage to teachers.

Consistent with the decisions which have been taken an Decentralization, the role of the Ministryof Education and Sports will be to perform or sponsor strategic functions, such as: determiningcore curricula; examnations; policy analysis and fornulation; planning and the surveillance oftrnds in inputs, outcomes, and efficiency; inspection; and publication of timely reports on thestatus of education; and redrafting legislation to implement policies. The National CurriculumDevelopment Centre and the Uganda National Examinations Board will be provided withadequite facilities, and otherwise strengthened to work closely with the Inspectorate in therelated areas of curriculum and examination development and professional support.

We recognise that, in the education sector as in other sectors, there is a need for improvedbudgeting, accounting, and auditing. The Economic and Financial Management (EFM) Projectbeing financed by IDA, includes components for training and computcrization in Budget Reform;accounting, and auditing. While all ministries will be eligible to benefit from the accounting andauditing components, the Budget Reform component is targeted at five line ministries, one ofwhich is the Ministry of Education, in addition to the Budget Department in the Ministry ofFinance and Economic Planning. In addition, the Ministry of Education and Sports has alreadybegun to revise personnel records and accounting systems under a PPF for the proposed project.

As will be supported under the Project, we are aiming at encouraging private sector developmentin the production and distribution of textbooks and other instructional materials, with the roleof the public sector to be policy oriented (setting policies, formulating guidelines and monitoringstndards), and to failitate a worldng market in instructional materials.

We am loodng forward continued collaboration with IDA, in the context of the fifth EducationProject, toward the achievement of these objectives.

Yours sincerely,

J.S. Mayanja-NkagiiMISTER OF FINANCE AND ECONOMIC PLANNING

65 ANEX8Page 5 of 6

UGAINDAPrimary Education and Teacher Developmezat Project

Action Plan

The activities associated with the Primary Education and Teacher Development project includeprocuremeat, policy measures, and institutional measures. Key policy and institutional measures arelisted below, while procurement activities are treated elsewbere.

Rdouincw the Patteni of Resource Mobiliation andRegwiww Alilgocgo

Consult with IDA conceming the budget for the educatioa sector, for the Febmary/March eachfollowiog fisca year, with the objective of progressively increasing year.Central Govemnmet expendihua in primay education as a percentage oftotal Central Govemnt expendition c0 edation, and as a peiventageof Gross Dowestic Product.

AnalYze the relationship between rollment, income, Lad other relevant To be discussed.variables, on the basis of the 1992 Integraed Survey, and drw out policyimpbca*ious of the findings. (To be finaced by SDA Study Fund.)

Shift bowding coss (mels, auonmda*ion, and related expenses) of Schedule to be detenninedUnivesity stuients ftfn Govenment budget onto beneficiaries, as soon as the follo,wing approval ofWhite Papw is approved. Establish student loan scheme to enable White Paper.needy studets to finance ch expean.

Teachimt Svice Estahisbhent and .. raol

Computerize the Teaching Segvice Staff Registr, including attaching a unique Implemented April 1993staff numuber to each snme in the regisr.

Carry out an audit and verificaiion of the tachers' payroll, based on field visits May - December 1993with the assistance of local leadas, and including physical count of schoolfa'ilities and eachers.

Eablish a District Establiish nt Register, in whicb eacb post has a unique post December 1993cosirol outber, in each district.

Begining with the 1993/94 financial year, funds for the pnmay teacer Beginning July 1993.payroll will be rfcnsfered dicy from the TNaqry to the DistnctExecutive Soecrary.

Beginning wit te 19N/95 fincial year. ceilinp will be established. on tbe Celuins to be establishbasis of Dctr ad out im th LSP, for eacb fincial year for the nrber of Apri of each year,pnmry lux o em3 iaJanies will ba financed fom the Cetral Govemnet beginning Aptd 1994.bud_d_

66 ANN 1Page 6 of 6

Esablish Teac D.veCpmmt Managent Syatemn (MS) Unit in the SqAmb" 30, 1993Ministry of EAwalion, and Dirict-leveJ TDMS Coordinating Comnittaos.

Tthe crinxia for dlectio of cmo FMC includs (a) catruqy of locaio to apotenta networt of pri,nw ls. (b) ao to essetial infrasructure, (c)eistog PrC physcal onditai,(d) possbility of hating. with coammityconsto. C faciliti to tbeir onginal fmcto a pany or _wodary

ool, and (e) potatid contribution of prnmy educao to dvehointLUsing theb crinmia, the folowimg coo PTFC sils have so far boe Inctd bythe Goveruua Loro (Apec); Nakaseke (Luwero); Bu1e (Hoinm); and(Mpigi). Necsszy data, including aaxollnit, number of trained aWd untrined.teacers, and the location of priny cbools i these D icts shl be providedupon IDA requw.

For the selctio n of additional com PTCa, guideie ad procedure, including Decenber 31, 1993the above cnteria, will be pre d which will ble al fTC. in the IDA-arsd TDMS Diutrw to be cond d for inclusio i do TDMS progrm.The selection g eiintg PFTC. sa well a posmble now PTC ste, will beuncentakai by the Dixtrict-leval TDMS Coordinating Comittoe in ttowith the MOES.

The TDMS Unit, MOSS would pieae prototype rining progra for the fiust June 30, 1994year for all in-evice. upgrding prmy scool teaces, h_edicerm, anlocal nuasgeit stLff, e.g., DEOs, inspect, and PrA ad MasaemtCommittee Hesda.

Enable PTC Boada of Goverona to change fees, to be etined umdw cotol of To be diumedthe iLstion, - th cndition that T counts dunC be submitd to an anualexternalaui

Subniit for IDA review &and comnt a wvied priary curicwlum which Dec 31, 1994proecta atiiol tin. for tho co l sjects.

Submit for IDA rview a d;eld p1la for improving the eum p in D mer 31, 1994icluding a progm for training for aamination iaf.

Submit for IDA rview a Tenm of Refemoe for a National A st Decmbw 31. 1994of Eduatinl Paforma -e.

Submit for IDA *view a ta taiing modul o continuato Decembr 31, 1994

ii e Sed Dndoedt

Submit for IDA review a Book Sector ow eV for S _emba 3.0, 1993dowWoping a mihd in school iaional zMWals.

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