Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No. 10971

PERFORMANCE AUDIT REPORT

TANZANIA

SIXTH EDUCATION PROJECT(CREDIT 861-TA)

JULY 28, 1992

MICROFICHE copy

Report No.Author: RALPH ROAIN Type: (PAR)Ext. :31740 R 00":T9oj1 D p .: E DDept -: OEDDI

Operations Evaluation Department

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

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COUNTRY EXCHANGE RATES

Name of Currency = Tanzania Shilling (TSh)

Year of Appraisal 1978 US$ 1.00 = 7.41 TSh1979 = 8.22 TSh1980 = 8.18 TSh1981 = 8.37 TSh1982 = 9.33 TSh1983 = 12.53 TSh1984 = 18.19 TSh1985 = 45.26 TSh1986 = 46.06 TSh1987 = 90.49 TSh1988 = 122.49 TSh

Completion Year 1989 = 136.72 TShIntervening Years Average USS 1 = 45.99

GLOSSARY

AfDF = African Development FundCIDA = Canadian International Development AgencyDANIDA = Danish International Development AgencyDSA = Dar-es Salaam School of AccountancyEAMI/ESAMI Eastern (and Southern) African Management InstituteIDA = international Development AssociationITO = Instructor Training CenterKESI = Kenya Educational Staff InstituteKTTC = Kenya Technical Teachers CollegeMANTEP = Management Training for Educational PersonnelMOE = Ministry of National EducationMOF = Ministry of FinanceMOL = Ministry of Labor and Social WelfareNBAA = National Board of Accountants and AuditorsNVTD = National Vocational Training DivisionPCR = Project Completion ReportPIS Project implementation SectionPiU = Project Implementation UnitSAR = Staff Appraisal ReportSIDA = Swedish International Development AgencyTSS = Technical Secondary SchoolUK = United KingdomUNESCO = United Nations Educational, Scientific and Cultural OrganizationVTO = Vocational Training Center

FOR OFFICIAL USE ONLYTHE WORLD BANK

WashingaOn, D.C. 20433U.S.A

Office of Director-GeneralOperations Evaluation

July 28, 1992

MORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT

SUBJECT: Performance Audit Report on TANZANIASixth Education Project (Credit 861-TA)

Attached, for information, is a copy of a report entitled"Performance Audit Report on Tanzania: Sixth Education Project(Credit 861-TA)" prepared by the Operations Evaluation Department.

Attachment

*Thi document has a suicted distribuion and may be used by rciplets on* In the performance of theiroMcal dalles. Its contents my not otherwise be disclosed without WesM Bank authodftMon.

FOR OFFICIAL USE ONLY

PERFORMANCE AUDIT REPORT

TANZANIA

SIXTH EDUCATION PROJECT(CREDIT 861-TA)

TABLE OF CONTENTS

Pag No.

PREFACE ......................................................... i

BASICDATASHEET ................................................ iii

EVALUATION SUMMARY ........................................... vii

L PROJECT BACKGROUND ...................................... 1

Introduction ................................................... 1

Project Generation ............................................ 1

Project Objectives and Scope ..................................... 2

a. Vocational and Technical Education ............................. 2

b. Accountancy Training ...................................... 3

c. Management Training ...................................... 3

d. Project Studies ........................................... 3

e. Project Administration and Monitoring andEvaluation................3Implementation Plan .......................................... 3Project Cost and Financing Plan.................................. 3

II IMPLEMENTATION EXPERIENCE .............................. 4

Project Management .......................................... 4

Physical Implementation ........................................ 5

Changes in Project Scope during Implementation ...................... 6

Project Ccsts and Disbursement ................................... 6

III PROJECT OUTCOMES ....................................... 7Expansion of the System ....................................... 8

Qualitative Aspects .... ....................................... 8

Staff Training ........ ....................................... 9

Other Outcomes ............................................ 10

IV. FINDINGS AND ISSUES ........................................ 11

Inadequacies of Preparation and Appraisal ............................ 11

IDA Performance ............................................ 16

Borrower Performance ........................................ 17

Sustainability of Project Benefits .................................. 17

ANNEXES1. Number Attending Training Courses conducted by MANTEP, 1979-83 ....... . 21

2. Performance on the Form Four Examinationat Technical Secondary School MOSHI ............................ 22

3. Fellowship Program ............................................. 23

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

PERFORMANCE AUDIT REPORT

TANZANIASIXTH EDUCATION PROJECT

(CREDIT 861-TA)

PREFACE

This is a performance audit of the Sixth Education Project in Tanzania for which Credit 861-TA in the amount of US$12 million was approved by December 12, 1978 and signed on January 22,1979. The Credit became effective in June 1979 and the project, after considerable modifications,was completed in 1989, some four years late. After three postponements of the Closing Date (fromthe original date of June 30, 1985 to the final date of June 30, 1988) in order to enable the proceedsto be fully disbursed, the Credit was fully disbursed, with the last disbursement on June 12, 1989.

The Performance Audit Report (PAR) is based on a review of the Project CompletionReport (PCR) No. 9626, dated June 18, 1991, the Staff Appraisal Report No. 2141-TA, datedNovember 23, 1978, the President's Report N2 2419-TA of November 29, 1978, the DevelopmentCredit Agreement, the record of Board discussions and IDA correspondence files, documents, andreports relating to this project. Discussions were also held with IDA staff associated with the project.An audit mission was undertaken to Tanzania in October/November 1991 in the course of whichdiscussions were held with Government officials and visits were made to a selected number of projectschools and institutions as well as to the Eastern and Southern Africa Management Institute. Theassistance of all these institutions, persons and the Bank Group Resident Mission in Dar es Salaamis gratefully acknowledged.

A PCR was prepared for this project The Audit (i) reviews project generation more criticallythan the PCR did, (ii) examines particularly the major changes made in the project duringimplementation which were not adequately addressed in the PCR (particularly the substantialtechnical assistance component comprising mainly fellowships), (iii) updates the PCR data on a keyproject issue--female enrollment--to present the substantially different picture that has developedsince the date of the PCR mission and (iv) corrects several details on which the PCR was in error.

In keeping with usual practice, a copy of the draft PAR was sent to the Borrower on April29, 1992 for comment. No reply was received.

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PERFORMANCE AUDIT REPORT

TANZANIA

SIXTH EDUCATION PROJECT(CREDIT 861-TA)

BASIC DATA SHEET

IY PROJECTD

Total Project Cast (US$ million) 16.0 15.76Underrun (%) 1.6

Credit Amount US$ million 12.0 12.0Disbursed (to June 12, 1989) 12.0CanceledRepaid (to May 1992) 0.42Outstanding (as of May 1992) 11.58

Date Physical Components Completed June 1984 Dec. 1988No months since Credit Signature 65 119Proportion completed by above Date (%) 30 100Time Overrun (%) 83

Date of Overall Project Completion Dec. 1984 April 1989No months since Credit Signature 71 123Proportion completed by above date (%) 35 100Time Overrun (%) 73

Institutional Performance Good Satleractory

CUMULATIVE ESTIMATED AND ACTUAL DISBURSEMENTS(USs ~Use

FYm0 EY8 FY82 m=m Y8 F Y85 FY8 FYN FY89(1) ApprPisal Est. 0.60 0.65 4.15 8.65 11.25 12.0

(II) Actual 0.05 0.13 0.85 2.18 4.07 5.44 6.27 8.08 10.02 12.0

I) Il as % ofI 8 20 20 25 36 45 52 67 84 100

i raken afrm PCR.

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STAFF INPUTS(staff weeks)

FY76 FY77 FY78 FY79 FY80 FY81 FY82 FY83 FY84 FY85 FY86 FY87 FY88 FY89 FY90 FY2 TAL

Preappraisal .1 1.8 78.7 .1 80.6

Appraisal 54.6 22.2 76.8

Negotiations 5.5 5.5

Supervision 4.7 7.8 5.6 10.9 10.9 9.8 9.1 15.3 12.u 19.3 3.1 4.9 .2 113.7

Other .1 1.2 5.0 6.3

Total .1 1.9 134.5 37.5 7.8 5.6 10.9 10.9 9.8 9.1 15.3 12.0 19.3 3.1 4.9 .2 282.9

PROJECT DATES

tem Planned Date Actual Date

First Mention In Files January 1977Negotiations September 1978 November 1978Board Approval December 12 1978Credit Signature January 22 1979Credit Effectiveness April 24, 1979 June 25, 1979Closing Date June 30, 1985 June 30, 1988

OTHER PROJECT DATA

Borrower: The United Republic of TanzaniaExecuting Agency: The Ministry of National Education

Follow-on Prolects

Name: Seventh Education Education Planning and RehabilitationCredit No.: 1056-TA 2137-TAAmount of Credit (US$m) 25.0 38.3 (SDR 29.0 million)Credit Agreement Date September 26, 1980 June 18, 1990

.V.

MISSION DATA

Type of Mission Date No. of Specialization Performance Trend c/ gl Type ofpersons Represented & Rating P/ Problems

Reconnalssance* Jan./Feb. 1977 2 A,TEReconnaissance/

Identification July 1977 4 E,E,GE,WSReconnaissance October 1977 1* GEReconnaissance November 1977 2 GE,GE*Preparation Jan./Feb. 1978* 6* A,AE,E,GE,GE,TEAppraisal April, 1978 5 A,E,GE,MBE*TEPost Appraisal June/July 1978 1 APre Negotiations October 1978 2 GE,GE

Supervision Jan. 1979* 1 GE .Supervision AprIl 1979 1 GE .Supervision July 1979* 1 CTR .Supervision Sep./Oct. 1979* 2 A,GE 1 2Supervision April/May 1980 2 A,GE 1 2Supervision November 1980 2 A,GE 2 2 FSupervision AprilVMay 1981* 2 A,GE 2 2FSupervision Oct./Nov. 1981 * 5* A,E,FS*,GE,TE 2 2TSupervision April/May 1982* 2 A,TE 2 2TFSupervision October 1982 3 A,GE,TE 2 2FTSupervision April 1983 2 A,TE 2 2FTimplementation

Review October 1983 4 A,GE,GE,TE .Supervision October 1983 2 AGE 2 2FTSupervision April 1984* 1 TE 2 2FTPSupervision September 1984 3 OTR,GE,TE 2 1Supervision March 1985 2 AJE 2 2TSupervision October 1985* 2 A,GE 2 2Supervision February 1986 3 A,GE,TE 2 -Supervision May 1986 1 CTR - -Supervision Sep./Oct. 1986 2 A,TE 2 -Supervision March 1987 2 ATE 2 -Supervision August 1987 2* GE,TE* -Supervision September 1987* 1 A . -Supervision December 1987* 3 A.AGE -Supervision March 1988 1 TE 2 -Supervision June 1988* 1 GE* 2 -Supervision June/July 1988 1 A - -Completion August 1988 1 TE - .Completion Aug./Sep. 1989 2 A,GE -

At A = Architect; AE = Agricultural Educator; CTR = Controller's Staff Member; E = Economist; FS = FinanceSpecialist; GE = General Educator; MBE = Management and Business Education Specialist; TE = TechnicalEducator, WS = Women in Development Specialist =

PJ 1 = Problem Free or Minor Problems; 2 = Moderate Problems; 3 = Major Problems.g1 1 = improving; 2 = Stationary; 3 = Deteriorating.9J T = Technical; F = Financial; P = Political* Indicates a difference with data in the PCR table.

ALLOCATION OF CREDIT PROCEEDS

Original Allocation Revised Allocation Actual Disbursement(Credit Approval) as of (as of 6/12/89)

03/09/82 06/24/88 (US$(US$ m) (US$ m) (US$ m) equivalent)

1. Civil Works (except for 3.60 3.6 4.120 3.538,962.31Part D)

. Furniture, equipment 1.45 1.45 2.472 5,756,602.00vehicles (except for Part D)

3 Consultants' services studies 0.25 0.25 0.885 763,538.70and monitoring and evaluation

4. Project Administration 0.25 0.25 0.250 89,129.035. Part 0-

(a) Civil Works 2.20 1.43 1.810 229,364.92(b) Furniture Equipment and 0.35 0.35 0.350 346,669.28

Vehicles(c) Local/Overseas Training 0.32 0.600 995,315.84(d) Consultants Services - 0.30 0.300 280,387.92

6. Consultants' Services Part F n.a. 0.15 0.150

Unallocated 3.9 3.9 1.063

Total 12.0 12.0 12.0 12,000,000.00

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PERFORMANCE AUDIT REPORT

TANZANIA

SIXTH EDUCATION PROJECT(CREDIT 861-TA)

EVALUATION SUMMARY

Introduction 3. The project therefore made provision for:

1. The Tanzania Sixth Education Project was (a) improving equipment at two VTCs alongidentified in July 1977, prepared in January/ with staff housing and student boarding toFebruary 1978 and appraised in April 1978. A attract and retain staff and rural students;Credit of US$ 12.0 million equivalent (Credit861-TA) was approved in December 1978 and (b) a new Instructor Training Center (ITC);the Agreement was signed in January 1979 andbecame effective in June 1979. With significant (c) boarding facilities for girls at four technicalchanges in scope, the project was successfully secondary schools to help improve thecompleted around April 1989--a 73% time female share of enrollment from 3% to 25%;overrun. After three extensions of the ClosingDate, from June 1985 to June 1988, the Credit (d) expansion of the Dar-es-Salaam School ofwas finally fully disbursed in June 1989. Accountancy (DSA);

Objectives and Content (e) an institution (MANTEP) to train educationmanagement staff-Regional, District and2. The objectives of this project were (i) to other education officers, school principals

assist in developing moden sector skill training and supervisors, andand management training, in particular, sub-professional training in accounting, the training (f) funds for the preinvestment study andof education managers, and the training of voca- monitoring and evaluation.tional instructors and (ii) to expand opportun-ities for females in technical secondary schools ImpLementation Expeienceand for dwellers of remote rural areas in thevocational training ceiters (VTCs). The project 4. The project was impmented by analso encompassed a preinvestment study of the experienced project unit in the Ministry ofproposed Institute of Education and some Education, with suitable liaison arrangementsproject monitoring and evaluation. with the Ministries of Labor (for vocational

training) and Finance (for DSA) and with training. The VTCs were functioning withtechnical assistance from DANIDA. The time improved facilities, staff retention was said tooverrun of 73% occurred because of shortages have improved, but the project impact on accessof building materials, constructicn contractor of rural students had not as yet been assessed.failures, problems of Government funding, Females constituted 18% of enrollment in theinadequate and belated project preparation and technical secondary school visited by the auditmajor changes in project content. The actual mission (not the 25% expected at appraisal); thecost of the revised project was only 1.6% below full expected complement of girls had beenthe appraisal estimates. admitted but there had been increases in boys'

enrollment and some attrition of girls. The5. Changes in project scope comprised performance of girls in the final examinations

was noted to be consistently inferior to that of(a) reductions in civil works to avoid an boys.

anticipated large cost overrun and7. The project monitoring and evaluation

(b) increases to provide for system was never put in place under this project(i) a large fellowship program for some as many years were lost waiting for. a

105 persons drawn from the staff of Coordinating Unit on Research and EvaluationITC, DSA and MANTEP as well as to be established as required under the Sevenththe project unit and the management Project. Only minor efforts were made to followof vocational training and up graduates of the VTCs and the MANTEP

(ii) supplementary books and instructional course.and other equipment for secondaryand vocational schools that were not in 8. The audit finds thatthe original project. Most of thereductions affected enrollment targets; (a) the project design was flawed in its failure tofor example, ITC received 112 instead include funding for staff training;of 160 places and the female dormitorywas deleted and is now being (b) project preparation and appraisal wereconstructed by the Center itself. Only inadequate in that too much was left to be504 of the intended 640 boarding worked out during project implementation,places for girls at technical secondary including the training programs of theschools were provided. institutions and staff development, and

Results (c) the long term fuA.re and status of the ITC,DSA and MAINTEP were inadequately

6. With these modifications, most of the addressed during project generation,project objectives have been achieved. As of the particularly as regards the degree oftime of the audit visit (October 1991), the ITC autonomy required for the efficienthad about 54 trainees, DSA had 310 students operation of tertiary level institutions.and the examination pass rates in accounting hadimproved to 59% in 1990-91 (by comparison Sustainabiliwith 10% in the 1970s). MANTEP was oper-ating on a smaller than anticipated scale, limited 9. Project benefits are sustainable on the wholein its enrollment (as was DSA) by the numbers and no negative trends are visible from thethat the Government could afford to send for standpoint of Government budget allocations.

Nevertheless, some words of caution are in Thus, the modifications made to the projectorder. The recurrent cost financing of DSA and during implementation--shifting the focusMANITEP needs to be reviewed, some modest somewhat away from hardware and towardinvestments are needed to complete ITC and strengthening staff and management capacityDSA, and the relocation and proper through training--succeeded in converting whataccommodation of MANTEP are advisable. For started out as an unsatisfactory project into athese three institutions, a more autonomous generally satisfactory project, despite somestatus is needed to enable them to develop their surviving problems in terms of the low status offull potential and minimize the attrition of the tertiary level project training institutions.trained staff. The benefits of female attendanceat technical secondary schools need to be 11. The major lessons to be drawn from theenhanced by early and thorough diagnosis of the experience of the project are:crisis of weak examination performances of thegirls and the adoption of remedial measures; (a) the importance of bringing project prepara-otherwise, the modest quantitative progress tion to as advanced a stage as possible bytoward equity that has been achieved to date will the time of Board presentation, in keepingue nullified. The VTCs will also need to find with operational guidelines;ways of helping to defray their high recurrentcosts. (b) the evidence that provision of boarding

facilities for girls at coeducational institutionsConclusion and Lessons is a necessary but, by itself, insufficient

means of securing real equity between the10. The main conclusions of this audit are, sexes;therefore, that, while this was a worthwhileproject, (c) the need to disburse Credit proceeds under

the relevant disbursement categories so as to(a) the project was inadequately prepared and avoid distortions in the record of allocation

prematurely appraised, with insufficient to these categories, andattention being paid at the design stage tothe importance of: (d) the central place of human resource(i) staff development for the success of development in any institutional devel.-p-

the project institutions and the need ment efforts.for project funding for this and

(ii) the autonomy needed for tertiary leveltraining institutions and

(b) the most important success of this projectwas the extensive program of staff trainingwhich was not part of the original projectdesign but was introduced duringimplementation.

PERFORMANCE AUDIT REPORT

TANZANIA

SIXTH EDUCATION PROJECT(CREDIT 861-TA)

I. PROJECT BACKGROUND

Introduction

1.1 Tanzania became independent in 1964 and was one of the earliest borrowers in the sector.Credit 45-TA (FY64) for the Tanzania First Education Project was only the second IDA credit foreducation. Five education credits for Tanzania were approved between FY64 and FY76, providinga wide range of support for education and training and assisting Tanzania to carry out its largeprimary education and villagization programs and to achieve some modest expansion in secondary andtechnical/vocational education. The First Education Project supported general secondary education;the Second (Credit 149-TA) included secondary schools, primary teacher training and technicaleducation; the Third (Credit 232-TA) financed agricultural training and the Fourth provided forvillage training, primary teacher training, medical training, vocational training and secondary schools.The Fifth Project (Credit 607-TA) financed village management training, secondary schools andstudies of (i) accountancy rnd (ii) primary and secondary education.

1.2 Tanzania had a population of 15 million in 1976 and a low per capita GNP, estimated atUS$200 in 1977. The enrollment ratio was 93% at primary level in 1978 but under 3% at secondarylevel (grades 8 - 11). Further development of technical education and vocational training was neededto meet manpower needs and to expand opportunities for women and rural dwellers. Other urgentneeds were identified in the training of subprofessional accounting personnel and in the training ofmanagers of the expanded education system. The Sixth Education Project was designed to meetthese r-&ds.

Project Generation

1.3 In January 1977 the Government indicated to a visiting Bank Group team that its policy wasto concentrate on strengthening science and mathematics at all levels and to expand the secondaryschool system. The Government therefore was seeking assistance to improve laboratories insecondary and teacher training institutions, establish a third technical college, strengthen veterinaryscience at the university, add some secondary schools and convert others into technical schools andtrain accounting stafE

1.4 A four person reconnaissance/identification Bank Group/UNESCO mission, in a brief visitto Tanzania in July 1977, agreed with the Government on the content of a possible project coveringtraining in accounting, training of education managers, expansion of vocational training and a possible

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agricultural training institute and some "reserve" items such as self reliance in secondary schools andimproved boarding facilities for girls in technical secondary schools.

1.5 A UNESCO led team assisted in preparing a project in January 1978 which included the Dares Salaam School of Accountancy (DSA); vocational training centers (VTCs); a training institutionfor education managers (MANTEP); higher level training for teachers of agriculture andprevocational subjects in secondary schools; facilities for girls at technical secondary schools;expansion and improvement of the Institute of Education and the Institute of Adult Education, apreinvestment study of educational radio and conversion of six secondary schools into technicalsecondary schools. This large proposal was estimated to cost US$91 million, well outside the reachof a proposed IDA credit of about US$12 million. The Bank Group and the leader of the UNESCOProject Preparation team then discussed and agreed on the following priority rating:

(a) DSA, MANTEP, ITC, VTCs;(b) Girls' facilities at technical secondary schools.

1.6 With a view to keeping total project costs down to US$20 million, the appraisal team, whichwas in the field in April 1978, included (a) all the items agreed between the Bank Group andUNESCO (above) along with a preinvestment study of the Institute of Education and expansion ofa secondary commercial institution; (b) only minimal technical assistance, relying instead onexpressions of interest by representatives of bilateral donors in furnishing technical assistance tovarious institutions such as SIDA for DSA, CIDA for ITC and the British Council for MANTEP.When AfDF did not provide the expected cofinancing, the project was scaled down by deletingcertain items--commercial training, improvements to one VTC and the technical assistance for ITCand DSA.

1.7 With this rapid pace of project generation, the constantly changing scale and compositionof the proposed project even after appraisal, and the effort to accommodate as many items as possiblewithin the available credit funds, it is not surprising that there were serious problems with the projectfurther downstream, since a number of key issues had not been properly resolved during thegeneration stage and no time was allowed to plan for the project institutions in full knowledge of theavailable resources. Consequently, such important issues as the status and long term role of theinstitutions, the required training and staff development and the precise physical requirements werenot satisfactorily addressed in the project design stage. These issues are discussed under therespective heads below.

Project Objectives and Scope

1.8 The project objectives were generally to assist in the training of middle level managementpersonnel and in skill training for the modern sector. The components and their specific objectiveswere as follows:

(a) Vocational and Technical Education(i) Improvement of instructional equipment at two VTCs (at Mwanza and Tanga) and

provision of staff housing and boarding to help attract and retain staff and ruralstudents;

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(ii) provision of a new Instructional Training Center at Morogoro, along with boardingand staff housing to train instructors for VTCs;

(iii) improvement of the access of females to technical education by provision of 160female boarding places at each of four technical secondary schools (Ifunda, Moshi,Mtwara and Tanga).

(b) Accountancy TrainingExpansion of the School of Accountancy (DSA) and provision of housing and boardingto train both technicians (clerks and storekeepers) and sub-professionals (junioraccountants and bookkeepers) in pre-service and in-service courses;

(c) Management TrainingProvision of an institution to conduct in service training of educational personnel,including Education Officers at the Regional, District and Divisional levels, Supply andInspection Officers and heads of colleges, secondary and primary schools and theirdeputies. The approximate number of trainees envisaged was about 500 per year -2,800 for the first five years - in induction courses alone.

(d) Project StudiesProvision of funds (US$75,000) for a preinvestment study of the Institute of Educationto define its future role, assess its staffing needs and plan its physical facilities.

(e) Project Administration and Monitoring and EvaluationProvision of funds (US$75,000) to support project monitoring and evaluation, includingthe preparation of a PCR, and funds to assist in implementing the project

Implementation Plan

1.9 The implementation of the project was scheduled to extend over a period of six years, inkeeping with experience with the sector in the country. The Project Planning Section of the Ministryof Education, which had had experience with three previous projects, was to be responsible foradministrative and professional services for implementing the project Liaison arrangements with theMinistry of Labor and Social Welfare (under which vocational training was administered) were to bemade to ensure efficient procurement of vocational training equipment. DANIDA was expected tocontinue providing specialist services to the Project Unit.

Project Cost and Financing Plan

1.10 The appraisal estimate of project cost was US$16.0 million including contingencies. Theproportion of total base cost identified for each component was as follows: DSA, 34%; VTC, 19%;ITC, 19%; Secondary Technical Schools 16%; MANTEP, 6%; Project Administration, Monitoringand Evaluation and Studies, 6%. By category, the distribution of cost was 78.3% for civil works,15.9% for furniture and equipment, 5.4% for project administration and 0.4% for technical assistance.Thus the project was designed with a clear and overwhelming concentration on hardware, leavingtechnical assistance to depend on other donors, without, however, any firm assurances on this. This

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focus on hardware was questioned when the proposed credit was discussed by the Board of ExecutiveDirectors, since it appeared to run counter to the recommendations of the External Advisory Panelon Education which had recently reported to the Bank. The Credit provided US$12.0 million, leavingthe Government to finance US$4.0 million.

II. IMPLEMENTATION EXPERIENCE

Project Management

2.1 The implementation of this project was coordinated by the Project Implementation Section(PIS) of MOE, with assistance provided by DANIDA experts. One distinguishing feature of thisproject was the extent to which the support required from outside experts was gradually reduced overthe implementation period 1979-87. Of the eleven principal staff of PIS, three were Tanzanianofficials throughout the periodY Six other posts were held by expatriates at various times; however,by 1984, all were filled by Tanzanian officialsY Two others were filled by expatriates even as lateas 1987Y

2.2 The delays in physical implementation were considerable, especially in regard to DSA, andwere largely responsible for the three extensions of the Closing Date from June 30, 1985 to June 30,1988. The less controllable reasons for delay varied over time. In 1980 there was delay in replacingthe DANIDA experts on whom the PIS depended. By 1982 physical implementation was already 21months behind schedule and this was because of shortages of materials, and the over-burdening ofthe technical staff of the PIS. By 1984 the shortages of building materials had become acute. From1985 onward, poor contractor performance was in evidence; the DSA contractor had to be terminated(and even the new contractor experienced severe cash flow problems in 1987) and the Ifundatechnical secondary school contractor went bankrupt in 1986.

2.3 Other delays could be attributed to deficiencies in project design, preparation orimplementation and these were peculiar to each project institution. The DSA works wereexceptionally delayed because of site allocation problems, as the site had to be apportioned between

The Project Coordinator, the Chief Procurement Office, and the Chief Administrator.

V The siK posts and the duration of service of expatriates were as follows:(1) Chief Building Administrator - 1979-80(2) Quantity Surveyor - 1979-83(3) Structural Engineer - 1979-81(4) Electrical Engineer - 1979(5) Chief Architect - 1979-84(6) Project Accountant - 1979-84

Maintenance Coordinator - 1981-87 - and Sanitary Engineer (which was held by three different expatriates) - 1979-87.

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the Ministry of Defense and the Ministry of Finance and this proved to be a difficult and protractedmatter. Extended negotiations and major works were needed to obtain a water line on campus ofsufficient sizeY Delays also arose because of late appointment of quantity surveyors. In the caseof ITC, there were delays in installing equipment as the need for specialist staff to install it had beenoverlooked at the project design stage and funds had to be found during implementation for thispurpose. At MANTEP, civil works - renovation of an old building - were not undertaken initiallybecause of indecision-in 1981 the Government was thinking of relocating MANTEP and in 1982 thelack of Government financing caused the deferment of civil works. 'There was also a problem ofownership of the building to be resolved. In any event, the cost of the renovations envisaged whichhad been estimated at appraisal as US$139,0006 was re-estimated in April 1981 at US$478,000 and,for such an amount, funds were not availableY

Physical Implementation

2.4 The unexpectedly high rate of inflation around 1982 generated fears of cost overruns andthe civil works program was consequently scaled down. Civil works comprised only 41% of the totalactual costs by comparison with 68% of the appraised cost. By the mid 1980s, the devaluation of thelocal currency in relation to the US dollar removed most of the fears of an overrun but by then thevast expansion of training absorbed a sizeable proportion of project funds. The most severereductions in construction occurred in the ITC and DSA civil works programs. At DSA the goal ofdoubling enrollment capacity was abandoned in favor of improvement and consolidation.

2.5 The achievements in civil works were nevertheless considerable. Part II of the PCR givesan excellent summary of the facilities actually constructed as against those originally intended. Thenew ITC was provided.-' It is generally well built, but the scattered layout of buildings meansextensive walking and the noisy carpentry workshop is too near the library. The DSA facilities arealso generally satisfactory; however, as of October 1991, unsuitable kitchen equipment still neededto be replaced and the campus was still experiencing water problems. Some of the staff houses (22of which had been provided) were experiencing rain damage as the angle of the roof and orientationof the buildings permitted rain to enter the spaces designed to facilitate cross ventilation. The

Y Although the SAR stated that sites were owned by the Government for all project institutions (para. 6.06) and thatno difficulty was forecast with regard to allocating the sites.

W Even this had not as yet been connected to the water storage tank at the time of the audit visit.

Y including contingencies; the estimated base cost was TSh75O,000.

V Approximately TSh4 million. The May 1981 supervision mission received this estimate. On other occasions a figureof eight million was mentioned.

N The audit mission found that several initiatives had already been taken to make up for the scaling down of facilities.A female dormitory Is being constructed by the ITC Itself and some more staff houses were bult under a self helpscheme and SIDA also provided five staff houses.

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dormitory places for girls in the technical secondary schools were scaled down and the actualprovision of facilities varied from appraisal expectations.y

2.6 Furniture and Equipiment. The procurement of furniture and equipment, vehicles andsupplies such as books was generally satisfactory. There were two noteworthy issues. The first wasthat, because of shortcomings in specifications at the tendering stage (for which the user institutions,the expatriate experts and local staff of the PIS are all to blame) as well as in the reception of theequipment, certain equipment items (especially kitchen items) received by the DSA and the VTCsproved unsatisfactory. The second issue concerns the substantial additions made to the project duringimplementation under this category which have not been identified as such in the PCR. Theseadditions were made possible by the realization of "savings". Some US$ 1.2 million equivalent wasused for books for secondaiy schools that were not originally project schools. In addition, 12secondary schools belonging to the previous Education Project were provided with equipment (at acost of about US$.25 million equivalent). At the recommendation of the experts assisting DSA,printing equipment to help in the production of teaching manuals was purchased for DSA (althoughthe set obtained was inadequate for the purpose). Some 37 vehicles were procured for variousservices not originally scheduled to receive vehicles.'

Changes in Project Scope during Implementation

2.7 The project underwent important changes during implementation which have hardly beentouched upon in the PCR. On the one hand there have been reductions in civil works (para. 2.4, 3.2- 3.4). However the major change in scope during implementation was the addition of a massivefellowship training component that had not been part of the original project concept. There wereseveral changes as well in fundamental (even if small scale) details in most items that wereattributable to inadequate preparation in advance and to the very rudimentary state of preparationat the time of project appraisal.

Project Costs and Disbursement

2.8 Costs. The actual project cost was only 1.6% below the appraisal estimate. The onlyreduction was in civil works, which had a large reduction in scope, while major increases occurred inall other categories - furniture, equipment and vehicles, project administration and particularlytechnical assistance. These changes reflect more the adjustments in project scope that occurredduring implementation than any changes in prices. The Borrower has not provided the customarycost table showing, by category and by project item, what the precise cost has been in US dollars

-W Instead of simply 160 dormitory places at each school there were some additional facilities (sIck bay, matron'shouse) and a slight reduction in the total of female dormitory places provided (from 640 to 504).

W The four Technical Secondary Schools (12), the two VTCs (6), the ITC (9), NVTD (2), the Technical CoordinationUnit (2) and the PIS (6). ITC was originally scheduled to receive vehicles but was faced with an Inadequate projectbudget in regard to this category.

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equivalently and the cost of new items added during project implementation; nor does the PCRoffer a precise statement.

Table 1: PROJECT COST IN US$000s

Cateaory Estimated Cost L Actual Cost &Civil Works 10,835 6,454Furniture 912 6,219Equipment and Vehicles 1,631 889Technical Assistance 089 159Administration and Monitoring

878 2,039Total 16,011 15,760

& Taken from Staff Appraisal Report. The PCR did not include contingencies in its statement of estimated cost in each category.

& Taken from PCR. These costs in US dollar equivalent are nm' accurate, especially regarding Technical Assistance and Administrationand Monitoring. As we have seen, the total fellowship program amounted to US$1.2 million equivalent. Some of these costs areprobably reported under other heads.

2.9 Disbursements. In the process of disbursement, the allocation of Credit proceeds bycategory was not carefully addressed. For example, much of the amount disbursed for training andother technical assistance was actually disbursed under other unrelated categories and the total sodisbursed can be determined only if one has the time and resources to go through each withdrawalapplication. The Credit was, however, fully disbursed as of June 12, 1989, following threepostponements of the Closing Date from June 30, 1985 to June 30, 1988 in order to permit as muchas possible of the Credit proceeds to be disbursed.

III. PROJECT OUTCOMES

3.1 The project was designed to establish certain emerging activities (ITC and MANTEP) ona firm footing, strengthen existing institutions (DSA and VTCs) and widen opportunities for ruralyouth and females at existing schools (VTCs and technical secondary schools). It has generallyachieved these objectives, although there have been some shortfalls. In addition, it has reached wellbeyond the original project to help non-project schools and to undertake an exceptionally large staffdevelopment program - a need which had been overlooked in the original project design. It hasexpanded the system of education and training, achieved some qualitative improvements, trained keystaff and achieved a very limited amount of monitoring.

M All that has been provided is a table of US$ equivalent cost In thousands by category.

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Expansion of the System

3.2 For the ITC, only 112 places were provided under the reduced civil works program insteadof the 160 intendod. The female boarding facilities were dropped and are now being constructed bythe ITC itself. Some 24 students were admitted in 1990 and 30 more in 1991. In regard to DSA,instead of adding 560 places, the project focussed on improvement. The school serves only theGoveinient and so its enrollment is determined by whatever resources the Government allocates forits operations. Hence, despite a heavy demand for training in the management of materials, theschool had an enroilment of only 310 in October 1991. Similarly, MANTEP, which had no civil worksbut occupied a campus constructed under a previous project and depends on the Governmentallocation of students to it, was under-earolled at the time--100 trainees on the long (two year)courses and 60 on short (2-6 weeks) courses. This was well below its boarding capacity of 240-320.The numbers catered for in the first five years of operations are given in Annex 1. The total of 1,271falls short of the project target of 2,800, and, after the loss of some momentum in 1984-85 when mostof the staff members were on fellowship training, by 1986 the total trained at MANTEP was only1,342.

3.3 The VTCs exceeded the objective of 300 boarding places and 30 staff houses; totals of 336and 34 respectively being achieved. In each of the two project VTCs in 1988-89 there were 150boarders. Enrollments were 234 (including 43 female) at Mwanza and 231 (including 69 female) atTanga in 1990-91. No data have been assembled to show whether the objective of the boardingplaces-enrollment of more persons from remote rural areas--has been achieved. Certainly more girlshave been enrolled as a result of the increase in female boarding.2

3.4 There were two project targets in regard to female enrollment in the technical secondaryschools--640 boarding places and an increase from about 3% to 25% of total enrollment. Actuallythe project provided 504 places. The Moshi school had fully allocated its boarding places, but therewas some attrition; 40 girls were admitted in each year and in the successive four grades there were39, 38, 35 and 36 girls at the time of the audit visit and females comprised 18% of enrollment. Thefemale share nationwide in 1989 as given in the PCR was 14.6%. Thus the problem is not that theboarding has not yielded the expected increase in female enrollment, but that the male enrollmentmay have risen and that attrition is higher among the females. Parents are said to be not veryenthusiastic about their girls going into technical secondary schools, but this has not prevented steadygrowth in the female numbers.

Qualitative Aspects

3.5 While it is too early to assess the qualitative impact of the project fully, so far the resultsappear to have been mixed.

V There has almost been a revolution In female access to the VTCs In recent years; there were some 688 girls In1990/91 out of a total of 2,935 trainees In the 17 VTCs (23%). The girls enroll mainly in signwriting, electrical Installation,tailoring and printing/bookbinding; a few also enroll in fitting and plumbing.

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3.6 At DSA the examination pass rate, which had been around 10% in the 1970s and early1980s, had improved to 41% in 1990-91. This was attributed by school officials to better facilities,better trained staff and superior student entry qualifications. Most of the courses offered at DSAare the two-year diploma type (240 students in 1991). On the one year certificate course at DSA,there were only 70 students in 1991 along with the 440 students enrolled in the same program in thebranches)A While further assistance will be needed in such areas as complementary equipment (forprinting manuals and so on) and completion of civil works (particularly regarding water supply,kitchen and staff houses) and staff development, the school is in a much better position to carry outits mandate than it was in 1979.

3.7 At MANTEP, there is no pre-project basis from which to measure improvement. On paper,however, the staff are better qualifiedAY With some collaboration with the University, the Institutefor Development Management, ESAMI and the curriculum development service of MOE, MANTEPhas been able to organize a variety of coursesA

3.8 The ITC has suffered from changing objectives and programs since the time of appraisal.While it is producing instructors, the audit has been unable to ascertain where its graduates havegone and how they are performing in the light of their training at ITC. At the VTCs there has beenno assessment of the qualitative impact of the project. The audit mission was informed that staffhousing provided has improved staff retention.

3.9 At the technical secondary schools, the performance of girls in the final examination hasbeen consistently worse than that of boys (Annex 2). The reasons have not been studied but needto be if the goal of equity is to mean anything; there needs to be a careful diagnosis of the problem,followed by the design and adoption of remedial measures. The poorer performance is reinforcedby the pattern of absorption into further education where the boys gain easier entry into the availableinstitutions and particularly the more prestigious ones.

Staff Training

3.10 The major change in project scope during implementation concerned training. Starting froma base of zero funding in the project for the training of staff the project eventually carried out afellowship program benefitting 105 persons at a cost of US$ 1.25 million equivalent, or 8% of theproject cost, as follows:

There are branches of the main campus In Mbeya, Mtwara and Singida.

There was some attrition of staff sent on the fellowship program under this project and there was a further trainingprogram financed under a subsequent project for all staff at ESAMI in 1990.

These include long (two-year) and short (2-6 week) courses. The long courses are for the Diploma in EducationalManagement (for Regional and District Education Officers) and the Diploma In Ubrary Science (conducted by theNational Ubrary for secondary and college staff). The short courses deal with special topics such as financialmanagement (for school principals), curriculum management (for headteachers and principals), education management(for inspectors, District Education Officers and headteachers) and statistics.

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No. of Cost (US$Persons equivalent)

Project implementation Unit 31 322,500Vocational Training & ITC 22 171,174MANTEP 16 284,074DSA 36 474,725

TOTAL 105 1,252,473

3.11 According to all Borrower officials interviewed by the audit mission, including managers ofthe returned fellows, the impact of this training program was considerable. While no tracer study wasdone to ascertain the impact of the training upon performance, the training programs were speciallyselected or specially tailored to meet performance needs. Annex 3 sets out the extent of retentionof the trained staff as of the time of the audit mission, some three to six years after the training. AtMANTEP, 16 had been trained and 15 were still in Government service (one had passed away) butonly five were still with MANTEP. Of the 31 trained under the umbrella of PIS (including someMOE officials who were not of the unit), 15 were still in PIS roles and 22 still in Government service,two had left voluntarily and seven involuntarilyA For vocational training, retention was quite high;19 of the 22 were still with their units (administration of ITC) and only one had departed voluntarily.In regard to DSA, attrition was highest, reflecting in part the dire shortage of qualified accountants;21 of the 36 were still at DSA and 26 with Government, five had left for the private and parastatalsectors, two had disappeared and three had left involuntarily. Overall, these are very respectableretention figures, especially in the light of the low salary scales.

Other Outcomes

3.12 Monitoring and Evaluation. The project activities were expected to be monitored andevaluated and the terms of reference for this activity were expected to be sent to IDA for comment.These terms of reference were never sent and arrangements were never made for the monitoringbecause the Borrower decided to await the establishment of the Coordinating Unit on Research andEvaluation that was to be organized under the Seventh Project. As late as February 1986 the Unithad not become operational.

3.13 MANTEP has undertaken some limited follow-up of its trainees-a survey of primaryheadteachers to determine (a) whether the training had improved their performance and (b) whetherthey needed further training and in which areas. The responses were in the affirmative and specifictraining needs were suggested. Tracer studies have also been done for three VTCs (including Tanga)to determine the usefulness of training. In addition, the In-Plant Training Department of NVTDfollows up graduates for the 2-3 year period of their apprenticeship after their VTC courses. Theaudit mission also learned that the technical secondary school at Moshi maintains data on where thegraduates go (higher education or jobs), but there is no feedback system.

jy The audit uses the term voluntarily to cover such things as taking up other jobs in the private or para statal sectorsand involuntarily to denote attrition through death, retirement or dismissal.

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3.14 Pre-investment Study. This study was carried out by the National Institute of Productivityand the report was received by IDA in November 1980, following which it was reviewed by MOE anddecisions were taken to establish an Institute of Curriculum Development which is being proposedfor funding under a possible future project.

IV. FINDINGS AND ISSUES

4.1 The project experience provides some valuable insights into the problems that arise frominadequate preparation and appraisal which hamper not only project implementation but also thesustainability of project institutions. Issues also arose in regard to the performance of IDA andBorrower which exhibited both strengths and weaknesses that are instructive.

Inadequacies of Pieparation and Appraisal

4.2 When a project is implemented with so many fundamental changes (as happened in thiscase), questions inevitably arise not only about the basic project concept but also about design,preparation and appraisal. The generating of this project did not grow out of any sense of a specificurgent need. On the part of the Bank Group, it was prompted by the perception that (i) the timehad arrived for another project and (ii) the areas of the sector that had been financed before shouldbe avoided. It was on this basis that the disparate items were collected into a project proposal and,throughout the period of project generation, attention was focussed on which items should remainin the proposal rather than on a thorough examination of the viability and technical soundness ofeach item or of the project concept as a whole. The most striking deficiencies in project generationthat plagued the project during implementation were (a) the fact that the proposal was not ready forappraisal; (b) inadequate attention to training needs and (c) the lack of attention to the status ofthe tertiary level project institutions.

PROJEcr READINESS FOR APPRAISAL

4.3 Several of the project items show their unreadiness for appraisal at the time of appraisal.Indeed very basic issues of design and preparation survived into the appraisal stage and beyond.

4.4 DSA. The principal interlocutor for the accountancy training component on the part of theGovernment during project generation was the Ministry of Finance (with some participation by theNational Board of Accountants and Auditors-NBAA) and it is not clear that the Ministry fullygrasped some key aspects of the problem of training. Similarly, the Bank Group and UNESCO(which helped to prepare the project) did not enlist the services of experts in either accounting oraccountancy training. The key item discussed during project generation was the high failure rate inthe examinations set by the NBAA. What dominated the dialogue was the proposal for a review ofaccounting by an international panel, the report of which was scheduled to be sent to IDA by July1979 (six months after Credit Signature) and which was to "provide the Association the opportunityto exchange views with it [the Government] regarding the actions to be taken to meet Tanzania's

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need for trained accountants".2 In other words, the basis for decision making on training wasdeferred to the project implementation stage.

4.5 When the panel did report (in 1980), IDA staff felt that the report did not deal sufficientlywith "book-keeping" (or middle level training) and requested that a plan of action be drawn up forthe project component. An expert was recruited in 1983 to prepare this, but his eventual plan wasconsidered too ambitious and not directed at the real needs of the rehabilitation of DSA and training.A Treasury team from the country then toured three countries in early 1984 (at project expense) toidentify (a) places of training for fellows (staff of DSA) and (b) an expert to help with DSA curricula,teaching methods, development of teaching materials and staff development. Eventually, most of theexpert training advice came from a London firm in 1985-86. Thus the precise development programto be carried out by DSA under the project had still not been determined when the originally agreedClosing Date of June 1985 arrived.

4.6 On the question of preparation/appraisal of the program of civil works, the lack of a firmdecision on the teaching program had obvious implications for the final determination of whatphysical facilities would be required. However, in the preparation/appraisal process there weredeficiencies that clearly had nothing to do with such program issues. For example, ownership of thesite of DSA by the Ministry concerned needed to have been verified (para. 2.3). The accessibilityof water needed to have been explored and was not satisfactorily addressed.

4.7 MANTEP. With regard to MANTEP, the preparation/appraisal function was also deficientin fundamentals. The terms of reference for MANTEP had been drafted by the Bank Group towardthe end of 1978, well after field appraisal and around the time of Credit Negotiations. These termsof reference were quite rudimentary and did not get into the matters required as a basis for assessingthe technical feasibility of the undertaking. It was only during implementation that IDA and theBorrower appeared to ask the pertinent questions.

4.8 For example, the appraisal idea that MANTEP should share the facilities of the NationalCollege of Education in Bagamoyo (built under a previous project), along with renovating an olddonated building on the campus, appears to have been accepted without serious examination untilproject implementation began. The first supervision mission in April 1979 and the next in May1979 complained that space was inadequate for both institutions, thus showing that the necessary andcustomary detailed calculation of space requirements and space availability had not been properlycarried out during preparation and appraisal. Similarly, the eventual finding that the renovationrequirements of the old building far exceeded the estimates also suggests that the appraisal estimateswere based on too cursory a review of the needs. The Borrower also pointed out in October 1979that staff housing and student boarding facilities were inadequate for both institutions and that withinthe limits imposed by these constraints the existing academic facilities would be under-utilized.

J SAR, para. 4.13

l This was actually the first supervision mission sent out as such. The one listed In the Basic Data as the first (InJanuary 1979) became a supervision mission only by virtue of the technicality that while It was In the field the CreditAgreement was signed.

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4.9 The selection of such a remote site for such a high level institution was another issue. Asearly as 1981 an IDA mission advised a change in site because, as it put it, "the location detersprogress" in that staff did not want to live there. The site has remained a problem; at the time of theaudit visit, the in-service training operations had been transferred to Dar es Salaam, leaving theBagamoyo campus to deal with pre-service training.

4.10 Supervision missions raised several points concerning the need for books, buildingmaintenance, a computer and modem equipment (1980), and a proper reference library (1984)--matters that should have been settled during project preparation and appraisal. During the entireperiod of implementation and up to the time of the audit visit, no pump was installed to make useof the water tower that existed on the site. A basic prerequisite for determining scheduling andfeasibility - a staff development plan - was left to be prepared after Credit Signature.

4.11 l'C. During project generation, the Government, with CIDA assistance, was operating aprogram of training for vocational instructors. Because the appraisal mission felt that a donor wouldprovide technical assistance for the new ITC, it initially included only a small technical assistanceprogram for this institution. Eventually, even this small item was deleted before Credit approval inorder to stay within prescribed cost limits. From the point of view of preparation and appraisal,however, it is surprising that as fundamental a requirement as the staff development plan for ITC wasleft to be prepared and sent to IDA by December 1979, eleven months after Credit Signature. Sucha staff development plan needed to be linked to both the teaching program of the Center and thephysical (housing and teaching) facilities to be provided. As experience during implementationshowed, neither of these other two essentials had been thoroughly worked out. The length oftraining was changed from the eight month program agreed at appraisal (to cover pedagogical andtechnical upgrading courses) to a two year course (to include more technical upgrading and thereforerequiring more equipment than had been estimated at appraisal). At the time of the audit visit, thistwo year program was being changed to a one year, purely pedagogical course, leaving the technicalupgrading to be done elsewhere.

INADEQUATE APPRAISAL OF TRAINING NEEDS

4.12 The appraisal team left the supply of technical assistance to depend very largely on otherdonors. While it was true, up to the time of appraisal, that Tanzania had been receiving largeamounts of technical assistance from various donors (CIDA, SIDA, DANIDA, the United Kingdom),there was no justification for omitting the staff training needs of the three large institutions (DSA,MANTEP and ITC) from the project. In the view of the audit, this neglect of staff training reflectedthe lack of awareness on the part of the appraisal team of both the urgency and the scale of theneeds. These needs were all well beyond the means of these bilateral programs. Only MANTEP wasstated in the SAR to have had an allowance in the project costing for training, but this statement wasnever supported by any figures in the SAR cost tables or in the Credit Agreement.y One of the

19- The SAR states (para. 4.17) that "Funds will also be provided to cover the expense of the three-month Instructortraining program at the EAMI.0 The detailed appraisal costing showed US$55,000 for technical assistance which wasexactly the amount for one year of an expert intended for MANTEP; hence nothing was shown In the cost tables forthis EAMI training. The Project description and the schedule of withdrawal of Credit Proceeds in the Credit Agreementare both silent on this training.

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questions raised at the meeting of the Board that considered the Credit for this project was whetherthere was adequate attention to training. The staff responded to the effect that the projectinstitutions were themselves training institutions.

4.13 It was only during project implementation that IDA staff came gradually to recognize, undersome pressure from the Borrower, the real dimensions of the training needs of the large institutions.In November 1981, an IDA mission stated that, as no major donors were forthcoming for DSA, thecomponent should be changed to provide for improvement rather than expansion, with attention tostaff training; this led to a reallocation of Credit proceeds in March 1982 to include a new headingfor "local/overseas training" for DSA. For MANTEP as well, the need for financing for staffdevelopment was not made explicit until the April 1981 supervision mission emphasized that morestaff training than the modest EAMI unfinanced course (which lacked funding anyway) was needed,and indicated that at least half, if not all, staff should have fellowships for training in the UnitedKingdom. An October 1983 aide-memoire pointed out that project funds should be used forintensified staff development. In June 1985 an IDA mission reported that the "prospects forsuccessful start-up of ITC are not encouraging unless financing for staff development is secured".Subsequently, a training program for all of these institutions was financed by the Credit.

4.14 In addition, the training of PIS staff specifically to reduce dependence on expatriate staffwas proposed by the Government and accepted by IDA during project implementation. Study toursfor some senior MOE officials were also included and the needs of the managers of the VocationalTraining Division were also addressed.

STArUS OF THE INsTmr ONS

4.15 Another area in which the project design and appraisal were deficient was in the relativeneglect of the question of the status of the three major project institutions. All of these were tertiarylevel training institutions with an important mandate and commensurate resource needs.

4.16 MANTEP was supposed to train education managers. These included persons who heldadvanced degrees and were of some experience in their selected activity. This institution deservedto be recognized as an institution of advanced training. One of the deficiencies of the terms ofreference drafted by the Bank Group staff prior to Credit approval was that there was no mentionof such a crucial issue as status. The November 1980 IDA mission observed that MANTEP lackeda budget for 1980-81 and that MOE was uncertain as to how MANTEP should be incorporated intothe administrative structure. It was then being administered as a teacher training institution underthe Teacher Training Directorate. The next mission in April 1981 advised that MANTEP shouldhave a separate budget line and that it should be allowed to deal directly with the Commissioner ofNational Education, even though remaining administratively under the Teacher Training Directorate.

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The statement of this mission on the status of MANTEP deserves to be quoted.-W As late as 1983,the Principal of MANTEP, arguing the need for the proposed ESAMI training program for his staffto give them the status and ability to train managers at all levels, stated that it was "high time thatMANTEP... staff members were given due qualifications and recognition". MANTEP should clearlyhave been, like the parallel Kenya Education Staff Institute, an autonomous body with its ownGoverning Board, with the power to charge fees to its student body, to receive subventions from theGovernment and other agencies, to collaborate with other agencies, to accept students from abroad,to conduct studies and undertake consultancies in matters related to educational management andto publish articlesA Its senior staff needed to be of the highest calibre, with excellent academiccredentials and solid senior management experience, and to be interchangeable with top managementechelons in MOE and top academic and administrative persons in such sector institutions as anInstitute of Education or a University department of management studies or education. It shouldhave been able to recruit its own staff and fix appropriate salary scales and terms and conditions ofemployment. Much of the reason for its failure to become a dynamic body capable of contributingfully to the renovating and renewal of education management is to be found in its currently relativelylow status.

4.17 With regard to DSA, the problem of its status was never addressed during projectgeneration. This institution should also have been autonomous and governed by a Board. DSA isa post secondary training institution. Its trainees are required to have entrance qualifications in manyrespects approaching those for the University-W and are trained in two year diploma courses andrequired to do supervised practical work. The DSA teachers need to be highly qualified - at leastholding Masters degrees along with pedagogical training. The institution operates at asubprofessional technician level, but there are compelling reasons why it should have beenautonomous instead of being operated as a unit of the Ministry of Fiaance. First of all, the staffneeds to do research and consulting if they are to remain abreast of tbeir specialization and to keeptheir courses relevant to local conditions; the teachers themselves and the public and para statalservices would benefit from consultancies into resolving problems of axcounting systems and practicesat the technician level. Secondly, the staff salaries at the DSA are abysmally low. The staff receiveonly TSh 6,000 per month (US$26) of which seven percent is paid fo busing. This is the level ofpay of primary school teachers, who do not have degrees, while the DStA staff are all degree holders.

L" institutions like MANTEP are rare. Only a few countries In the developing work %a-e realized the necessity ofsystematically training its managers and administrators in the modem techniques of management and personnelpolicies. In this respect the lead of Tanzania is commendable. However, this being a new discipline, the success ofthe institution depends critically on the quality of faculty it draws, the type of leadership the faculty exhibits, therelevance of the curriculum and the flexibility with which training programs are organized. This suggests that the facultyshould be dynamic, experienced and fully trained. Moreover, it should be accorded the recognition of a developmentalinstitution, of highest prestige, charged with the task of improving the quality of administration of the entire EducationSector.'

l It was not until the December 1987 supervision mission that IDA observed that MANTEP should be undertakingstudies and listed some of the areas with studying.

- The University requires passes in three IA' level subjects whereas DSA requires two. There is no difference ofsubstance in intellectual level between a person who has two and one who has three passes. Indeed, some countriesaccept two passes for entry into universities of the same rank as that in Tanzania.

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Similarly qualified persons in the private sector can earn TSh 60,000-00,000 per month. This issueshould have been taken up at appraisal.

4.18 There was a similar failure to address the problem of status of the ITC. At projectgeneration there was no discussion of the long-term development perspective of the institution andattention was narrowly focussed on the training of instructors--on the instructional program ratherthan on the status and future of the institution that would conduct the training. The longer termview would have shown the need to lay the groundwork for a much wider range of services tovocational training than simply training VTC instructors. In consultation with a bilateral donor duringimplementation, many of the issues of future have been explored--ITC now trains both instructorsand managers of VTCs; it is expanding its horizons, planning to add a diploma (two year) course tocover such specializations as design of vocational training programs and syllabi, inspection of VTCsand, in the longer run, awarding degrees. The idea of a two year course including technical upgradinghas been replaced by a one year, purely pedagogical course. The ITC will accept only alreadyupgraded persons. The campus would operate both a VTC (which will offer opportunities for thetrainee instructors to do practice teaching--something that was not addressed during projectgeneration) and the instructor training program. Twinning of the ITC with an Institute of HigherEducation in Britain is being arranged. An institution such as ITC is bound to evolve and needs along term horizon for the planning of its most efficient evolution.

4.19 Salaries are another important issue. Graduates of the ITC receive TSh 7-8,000 plus a 30%teaching allowance; trained primary teachers receive TSh 6-7,000 plus a 30% allowance. The privatesector pays a person of the caliber of the trained instructor some TSh 30,000 - 40,000 per month.The advantages of autonomy would have included the freedom to fix salaries and fees.

IDA Performance

4.20 The performance of IDA on this project exhibited both strong points and weaknesses. Asindicated above, project generation - preparation and appraisal -showed deficiencies (para. 4.2) thatplayed some part in the difficulties as well as the changes in project scope encountered duringimplementation.

4.21 In several technical details, the performance of IDA was not up to its customary exactingstandards. For instance, when the Credit Agreement was declared effective (25 June 1979), the legalopinion was technically incomplete and IDA proceeded to effectiveness only on oral assurances aboutits completion.-y On the Credit Agreement itself there was an amendment proposed by IDA onJanuary 24, 1980 authorizing the use of Credit 371-TA proceeds to finance components of Credit861-TA. IIA sent this to the Government for signature and, while it proceeded with implementingthe proposed expenditure, one staff member noted in 1982 that there was no record, either in theResident Mission for East Africa or in Headquarters, that the Government had ever signed thisamendment

W The problem was that the legal opinion needed to have a date on a key certification by the Paymaster General.The date had been left blank In the document sent to IDA; the Government was asked to send written authorization toIDA to fill In the date. That written authorization was not received until 27 June but the oral assurance had been givenby the Government on 25 June that the written authorization would be forthcoming.

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4.22 In October 1986, some expert staff of NBAA received contract extensions with funding(US$130,000) from Credit proceeds, but NBAA was not an object of funding under the CreditAgreement and no amendment was made to authorize this. The disbursement of Credit proceeds fortraining was not done only from the categories prescribed for the purpose. The omission fromthe original Credit Agreement of a category to cover training (although the EAMI training programwas envisaged) was evidently in error (para. 4.11).

4.23 Supervision reports were not always as carefully prepared as they should have been. Forinstance, the state of completion of civil works regarding DSA was given as 45% in March 1987, 30%in September 1987 and 45% in March 1988. The May 1987 report describes the Principal Secretaryand another official as having "completed their study tours and returned" while the Project Unitstated in July 1987 that the Principal Secretary "did not complete the study tour to Canada andWashington, D.C. as originally planned".

4.24 In general, however, IDA performance during supervision was strong. Missions were fairlyregularly spaced and helped to speed up implementation through such suggestions as directimportation of materials and agreement to the revision of project content to stress staff training. IDAalso showed flexibility in permitting three extensions of the Closing Date to allow for fulldisbursement of the Credit proceeds.

Borrower Performance

4.25 Borrower performance was on the whole satisfactory. There were delays that could beattributed to the slowness of the general civil service bureaucracy such as (a) on making the keyappointment of a Principal of DSA (especially at a critical period early in project implementationwhen a spokesman for DSA was needed); (b) in commencing direct importation of constructionmaterials following IDA staff advice that this should be done and (c) in preparing staff developmentplans for the three large project institutions. There were shortcomings in specifications forequipment to be procured and in receiving equipment items that were defective or substandard.Nevertheless, there were several strong points such as (i) the promotion of the idea during projectimplementation that a major program of staff training was needed, (ii) the energetic organizing andcarrying out of the large fellowship program with remarkable success and (iii) the useful suggestionsfor utilizing all of the Credit proceeds, such as additional urgently needed books, equipment andsupplies to secondary and technical schools and organizing their expeditious procurement.

Sustainability of Project Benefits

4.26 The benefits derived from the project are considerable. DSA is now a much betterconducted and effective training institution as a result of the physical facilities and trained staffprovided. It is constrained in its scale of operations by the limits plar-1 on the number of personsthe Government sends to it for training, which, in turn, is determined by limits of Governmentrecurrent funding allocations and investments. The School also requires modest investments to

& For example, local and overseas training was a category opened with the March 1982 amendment. Eventually atotal of US$995,000 was disbursed under this category. This meant that some US$200,000 had to be covered underother (and inappropriate) categories.

- 18s.

safeguard even this restrained level of functioning--investments in repairs to staff houses, completionof the water supply connection, proper equipping of the kitchen and print shop, site development andfurther staff development. Any future investment in DSA, however, needs to be linked to helpingit to realize its full potential by upgrading its status to that of an autonomous institution providingtraining for the private sector as well and playing a more dynamic role in the development ofaccounting practices in the country.

4.27 MANTEP is laboring under major disadvantages--its unsatisfactory, remote location,inadequate recurrent funding, poor physical facilities, vehicles that are generally no longer usable anda still very poor library. It will be able to function in its current state, but will require furtherassistance in order to realize its full potential--relocation or a major upgrading of buildings, equipmentand supplies, further staff development, a new and autonomous status with active participation instudies of education management and a well considered financing arrangement. As things stand, thebenefits can be sustained but only a low level.

4.28 The ITC is in the process of evolution and the directions of change all suggest thatsustainable benefits will be achieved. There will still be need for some further campus developmentsuch as relocating of the library and provision of the facilities needed to function as both a VTC andan ITC. Within the context of the proposed twinning with a British institution, some further supportwill be needed for staff development.

4.29 In all of these three institutions there is a great likelihood of serious staff attrition in thefuture without some revision of staff salaries.

4.30 The benefits of increased girls' attendance at technical secondary schools are sustainable inthe sense of numbers. It is clear, however, that (a) a more vigorous effort is needed to avoid parallelexpansion in enrollment of boys which simply pushes back the frontiers of equity and (b) that aserious effort is required to provide greater equality of opportunity by diagnostic and follow upremedial action on the poor performance of girls in the technical programs.

4.31 For the vocational training centers, the project benefits appear to be reasonable. Howeverofficials consider that recurrent costs are high and the Government has not as yet settled upon aformula to take care of this issue. Nevertheless the benefits are sustainable.

4.32 Thus, in every project component, sustainability at a less than optimal level is possible butpolicy measures and, in some cases, new investments will be needed to bring those benefits tosustainable optimal levels.

4.33 The audit mission reviewed budgetary trendsR in regard to the project institutions(MANTEP, DSA) and in Vocational Training and Secondary schools and found nothing to suggestany financial threat to the sustaining of project benefits.

-N The national budgets reviewed were 1982/83, 1983/84,1989/90 and 1990/91/ For DSA there was a sharp Increasebetween 1989/90 and 1990/91 , notably for maintenance and for Inservice training. For Vocational Training there wasan increase In the share of the national budget from .01% In 1982-83 to 0.2% in 1990/91.

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Conclusion and Lessons

4.34 The main conclusions of this audit are, therefore, that while this was a worthwhile project:

(a) the project was inadequately prepared and prematurely appraised, with insufficient attentionbeing paid at the design stage to the importance of:(i) staff development for the success of the project institutions and the need for project

funding for this and

(ii) the autonomy needed for tertiary level training institutions, and

(b) the most important success of this project was the extensive program of staff training whichwas not part of the original project composition but was introduced during implementation.

Thus, the modifications made to the project during implementation--shifting the focus somewhat awayfrom hardware and toward strengthening staff and management capacity through training-succeededin converting what started out as an unsatisfactory project into a generally satisfactory project, despitesome surviving problems in terms of the low status of the tertiary level project training institutions.

435 The major lessons to be drawn from the experience of the project are:

(a) the importance of bringing project preparation to as advanced a stage as possible by the timeof Board presentation, in keeping with operational guidelines;

(b) the evidence that provision of boarding facilities for girls at coeducational institutions is anecessary but, by itself, insufficient means of securing real equity between the sexes;

(c) the need to disburse Credit proceeds under the relevant disbursement categories so as toavoid distortions in the record of allocation to these categories and

(d) the value of placing human resource development at the center of any institutionaldevelopment efforts.

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Number attending Training Courses conducted by MANTEP, 1979-83

Category of Staff 1979 1980 1281 1982 1283

1. Inspector.Primary School 98 - 92 --

Adult Education 109 - 14 --

Technical Educ. 7 - - --

Sec. & Teacher Ed. - 10 -

Special Education 6 - -- -

District School - - 114 - -

2. Division/Ward Educ.Officer - - 120 120

3. District Ed. Officer 53 45

4. Potential Sec. SchoolTeacher 129 - -

5. Supplies/LogisticsOfficer 120 - -

6. Head of Sec. School - 36 - 45

7. Head of College ofEducation 18 - 15

& District Coordinatorof Adult Educ. - - - - 40

9. Regional Coordinatorof Adult Educ. - - - - 20

10. Others - 60

TOTAL 220 356 275 180 240

GRAND TOTAL 1271

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ANNEX 2

Performance on the Form Four (End of Course) Examinationsat Technical Secondary School MOSHI

% of StudentBody Gaining

Girls Boys I, HI& I

I II III IV Failure I II III IV Failure Girls Boys

1983 - 1 7 25 2 30 26131 41 3 23 43

1984 - - 3 23 4 15 30125 64 5 10 50

1985 - 1 4 27 3 19 28130 59 0 14 57

1986 1 1 3 19 6 19 19131 55 7 17 53

1989 1 3 5 20 3 42 36150 28 1 28 82

1990 - 4220 8 36 32 40 50 4 18 67

Note: Division I is the highest and Division IV the lowest grade of those who pass.

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ANNE 3Page 1 of 2

Fellowship Program

1. Training Courses

MANTEP DSA9 PISX IT TOTALShort Courses(Up to four months)No. of Fellowships 19 12 26 22 79No. of Persons% 16 11 24 22 73Long CoursesNo. of Fellowships 12 26 7 - 45No. of Persons 12 26 7 - 45TotalNo. of Fellowships 31 38 33 22 124No. of Persons 16 36 31 22 105

Source: Audit tabulation of data provided by PIS on each fellowship.

' Does not include two persons who were never on DSA staff but were nonetheless trained underthis program.

& Includes eight persons from MOE who were not on PIS or Planning stafE

< Includes 10 persons from ITC and 12 from NVTC.

A few persons were awarded two separate fellowships so that the number of persons is not alwaysthe same as the number of fellowships.

SA few persons were sent on both long and short courses.

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ANNEX 3Page 2 of 2

2. Retention of Trained Persons(Data as at date of audit visit October 1991)

MANTEP DSA PIS ITO TOTAL

(1) Number trained 16 36 31 22 105

(II) Number still in unit or activity concerned 5 212 15* 19** 60

(III) (i) as proportion of (1) 29% 58% 49% 86% 57%

(lv) Number still in Government servicewithin sector (Includes II) 15* 26* 20 19 80

(v) (iv) as proportion of (1) 94% 72% 65% 86% 76%

(vi) Number In Government Service 15 26 22 19 82

(ViI) (vI) as proportion of (1) 94% 72% 71% 86% 78%

(viii) Gone to Private Sector or Para Statal - 5 2 7

(Ix) Whereabouts unknown but not in Govt Service - 2 - 1 3

(x) Net Voluntary Brain drain - 7 2 1 10

(xi) (x) as proportion of (1) 0% 19% 6% 5% 10%

(xil) Deceased/Retired 1 3 7 2 13

(xi) Net loss (voluntary/Involuntary) 1 10 9 3 23

(xiv) (xiil) as proportion of (i) 6% 28% 29% 14% 22%

Source: Audit tabulation on the basis of data supplied by PIS on each fellow.

& This figure may be 23. The two persons who were never on the staff of DSA but were trained

under this program have presumably returned to their unit.

* Includes person on advanced studies overseas.

* Includes two persons on course of study overseas.