report no. 15426-ke staff appraisal report...

Document of

The World Bank

Report No. 15426-KE

STAFF APPRAISAL REPORT

REPUBLIC OF KENYA

EARLY CHILDHOOD DEVELOPMENT PROJECT

March 10, 1997

Africa Technical Human Development 1Eastern and Southern AfricaAfrica Region

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CURRENCY EQUIVALENTS

Currency Unit = Kenya Shillings (KSh)US$ 1 = KSh 55

KSh 1.00 = US$ .018SDR 1.00 = US$ 1.44124

WEIGHTS AND MEASURES

Metric System

GOVERNMENT FISCAL YEAR

July 1- June 30

ACRONYMS

AKF Aga Khan FoundationBVLF Bernard Van Leer FoundationCBS Central Bureau of StatisticsCCF Christian Children's FundCHW Community Health WorkerDECDIC District Early Childhood Development

Implementation CommitteeDEO District Education OfficerDICECE District Center for Early Childhood EducationECD Early Childhood DevelopmentGMP Growth Monitoring and PromotionGOK Government of KenyaICB International Competitive BiddingIDA International Development AssociationKIE Kenya Institute of EducationLCB Local Competitive BiddingMCH Maternal and Child HealthMOE Ministry of EducationMOF Ministry of FinanceMOH Ministry of HealthMOU Memorandum of UnderstandingNACECE National Centre for Early Childhood EducationNECDIC National Early Childhood Development

Implementation CommitteeNGO Non-Governmental OrganizationPIM Project Implementation ManualPMG Pay Master GeneralWMS Welfare Monitoring Survey

Vice President: Callisto MadavoCountry Director: Harold WackmanTechnical Manager: Ruth KagiaTask Team Leader: Marito Garcia

Republic Of Kenya


BASIC DATA

A. General Country DataGNP per Capita (US$) 1995 260.0GNP per Capita (US$) 1994 260.0Area ('000 sq. km) 580.0Population (millions) 1994 26.7Working Age Population (% of Total) 1993 (15-64 years old) 51.3Urban Population (% of total) 1993 26.0

B. Social IndicatorsCrude Birth Rate (per 1,000) 1993 36.0Crude Death Rate (per 1,000) 1993 9.0Infant Mortality Rate (per 1,000 live births ) 1993 61.0Stunting in Pre-school Children (%< -2 s.d. ht/age) 1994* 61.0Wasting in Pre-school Children (%< -2 s.d. weight/lht) 1994* 7.8Underweight prevalence (%< -2 s.d. weight for age) 1994* 22.5Immunization Rate of Infants vs. Measles (%) 1993 76.0Gross Primary Enrollment (%, 1993)

Male 92Female 91

Gross Secondary Enrollment (%, 1993)Male 28Female 23

Net Primary School Enrollment (%, 1993**)Rural

Male 73Female 74

UrbanMale 69Female 74

Net Secondary School Enrollment (%, 1993*Rural

Male IIFemale 19

UrbanMale 21Female 21

C. Public Expenditure on EducationTotal Government Expenditure on Education(in millions of Kenyan pounds) 1994/95 1,279MOE share of total Government Expenditures 1994/95 25%MOE share of GNP 1992/93 6.7%

* From Kenya Welfare Monitoring Survey II, conducted by Central Bureau ofStatistics/Ministry of Planning and National Development, Nairobi.

** Kenya Welfare Monitoring Survey I, Central Bureau of Statistics, Nairobi

KenyaEarly Childhood Development Project

Table of Contents

1. BACKGROUND ................................. IA. Profile Of The Child In Kenya ..........................................lB. Early Childhood Development: The Conceptual Basis ..........................................1

C. Child Development Services In Kenya ........................................... 2

D. Issues In Early Childhood Development In Kenya ..................................... . . 3

1. Low Levels of Investment in ECD .......................................... 4

2. Quality .......................................... 4

3. Efficiency .......................................... 5

4. Equity .......................................... 6

E. Government Policy And Strategy .......................................... 6

1. Sector Policy .......................................... 6

2. Sub-sector Policy ......................................... 6

F. Learning From Other Experiences .......................................... 7

1. Lessons from Kenya .......................................... 7

2. Other Experiences ......................................... 7

G. Rationale For Bank/IDA Involvement .......................................... 8

H. Role Of Other Donors ........................................... 9

2. THE PROJECT ................................ .. 10A. Project Objectives And Strategy .......................................... 10

B. Scope, Phasing And Targeting .......................................... 10

C. Detailed Project Description .......................................... 11

Project Components .......................................... 11

D. Project Management And Coordination .......................................... 15

E. Monitoring And Evaluation .......................................... 17

3. PROJECT COST AND FINANCING . . .......................... 19A. Project Cost ........................................... 19

B. Recurrent Cost And Pricing Sustainability ......................................... . 20

C. Financing Plan ................................................ 20

4. PROJECT IMPLEMENTATION . . ............................. 22A. Project Preparation ............................................... .. 22

B. Implementation Schedule ................................................ 22

C. Project Implementation Manual ................................................ 23

This report is based on an IDA appraisal mission which visited Kenya in February 1996. This mission was led byJayshree Balachander (nutrition management specialist), and included Marito Garcia (human resource economist) whoassumed task management in July 1996, James Kamunge (educator based at the World Bank Resident Mission) JamesGreen (nutrition adviser), Anil Deolalikar (economist), Kaori Miyamoto (operations analyst), Colin Lyle (accountingspecialist), and Fred Kranz (procurement specialist). The World Bank resident mission staff assisted the appraisalmission including: Richard Anson (senior operations officer); Nyambura Githagui (NGO specialist); John Nyaga(audit and accounts specialist); Mbuba Mbungu (procurement); and Peninah Nyakweba (administrative support). Thelead adviser was Jacques van der Gaag (HDD), and peer reviewers were Xavier Coll (LAIHR). F. Reza and V.Saldanha provided administrative support and assisted in the processing and production of this document. Ruth Kagiais the technical manager, Harold Wackman is the country director and Kenichi Ohashi is the country programcoordinator.

D. Procurement ................................ 23E. Disbursements .26

1. Disbursement Percentages .262. Required Documentation .273. Special Account .27

F. Accounts And Audits .. 28

5. EXPECTED BENEFITS AND RISKS . .30A. Benefits..30B. Impact On Women .31C. Enviromnental Impact .31

D. Project Risks .31E. Program Objective Category .32

6. AGREEMENTS, ASSURANCES AND RECOMMENDATIONS .. 33

TABLES

Table 1 Sub-sectoral Allocations of the MOE's Recurrent Budget. 4Table 2 Project Cost Summary .19

Table 3 Annual ECD Expenditure Per Child by Source .20Table 4 Financing Plan .21Table 5 Summary of Procurement Arrangements .26

Table 6 Estimated IDA Disbursement Schedule .26

Table 7 Allocation and Disbursement of IDA Credit .27

ANNEXES

Annex A Letter Of Sectoral PolicyAnnex B Teacher Performance Improvement and Training ComponentAnnex C Community Capacity Building and MobilizationAnnex D Health and Nutrition PilotAnnex E ECD Community Grants ComponentAnnex F Project Management and CoordinationAnnex G Monitoring and Evaluation ComponentAnnex H Detailed Project Cost BreadownAnnex I Project Implementation Manual OutlineAnnex J Cost-Benefit AnalysisAnnex K Disbursement Schedule by Quarter

MAP IBRD No. 26150

KENYA


CREDIT AND PROJECT SUMMARY

Borrower Republic of Kenya

Implementing Agencies: Ministry of Education, National Center forEarly Childhood Education, NGOs

Beneficiaries: Children ages 0-8 years in low income households

Poverty: Program of Targeted Interventions

Amount: SDR 19.3 million (US$ 27.8 million equivalent)

Terms: Standard IDA Terms with 40 years maturity

Financing Plan: IDA US$ 27.8 millionGovernment of Kenya US$ 5.3 millionDonors US$ 2.0 million

US$ 35.1 million

Commitment Fee: Standard (a variable rate between 0-0.5% ofthe credit balance, set annually by theExecutive Directors of IDA)

Net Present Value: US$ 94 million (see Annex J)

Staff Appraisal Report: Report No. 15426-KE

Map No.: IBRD 26150

Project ID No.: 34180

KENYA


1. BACKGROUND

A. PROFILE OF THE CHILD IN KENYA

1.1 The Kenyan child's chances of survival have improved dramatically since the1960's. The country's infant mortality rate fell from 120 to 62 between 1963 and 1993and the under five mortality rate from 200 to 96 in the same period. However childquality indicators such as levels of morbidity, nutritional status and educability show thatmuch remains to be done. Improvements in these indicators seem to have stalled and insome cases reversed in the last decade. In the pre-school age group (0-6 years of age),stunting - an indicator of chronic malnutrition - was estimated to be 34% in theDemographic and Health Survey (1993), up from 32% in 1987. A 1994 UNICEF surveyfound 80% of pre-school children surveyed to have worm infestations while more than50% suffer from anemia. Amongst primary school age children, a UNESCO survey(1992) found poor health and nutrition status, rising rates of grade repetition,absenteeism, poor classroom performance and school dropout. Grade repetition rates are13% of total enrollment in primary school. About 20% of children who enroll in primaryschool do not complete Standard IV, and 57% do not complete Standard VIII.

1.2 Further, these averages mask large differences by economic group and location.For example, mortality is more than twice as high for children of mothers withincomplete primary education compared with those with secondary education or higherand four times as high in the Western and Coast provinces as in Central province.Malnutrition is 60% higher in rural than in urban areas and higher in children of motherswith incomplete primary education than those with secondary education. The poorestdecile has a net primary school enrollment of only 62% as compared with 80% for the topdecile. Children from poor households therefore have a higher risk of mortality, are morelikely to be malnourished and less likely to attend school than the average Kenyan child.Of the 6 million children in Kenya under the age of six, about half are fromfaamiliesbelow the poverty line.

B. EARLY CHILDHOOD DEVELOPMENT: THE CONCEPTUAL BASIS

1.3 Early childhood development (ECD) is crucial for human capital formation andfor enhancing the educability of children. There is an increasing body of scientificliterature pointing to the importance of the first few years of life from the point of view ofhuman physical, mental and social development. Developmental deficiencies that occur

Background 2

during this period are difficult and sometimes impossible to reverse. Inadequate physicaland mental development of children in the pre-school years lead to delayed schoolenrollment, and subsequently to poor progress and performance in school. ECDprograms can help upgrade the quality of human resources going into the primary schoolsystem. ECD programs are an excellent preventive investment for groups with potentiallearning difficulties. A number of studies have confirmed that deficits in intellectualdevelopment in pre-school children that accompany poverty and malnutrition can beprevented through improved diets, learning experiences and health surveillance. Thefamily is the primary provider of the needs of pre-school children for good nutrition,prevention of disease and stimulation. However, the increasing participation of women inthe labor force, the numbers of female headed households, and changing family structuresand childrearing practices have created new demands for external support. ECDprograms are often the first opportunity for inexperienced parents to learn parentingskills. Furthermore, ECD programs do release mothers to work and supplement familyincome, and elder siblings (especially sisters) to go to school.

1.4 Early childhood development programs are usually based on a curriculum arisingformn a specific theory of early education - the cognitive developmental approach (whereteacher and child are active participants), the didactic instruction approach, where thechild is passive and the traditional play based nursery school approach in which theteacher is passive, but the child is an active participant. Evaluations of the differentapproaches suggest that the choice of approach is less important for success thanconsistency and quality. Flexible and culturally appropriate approaches are most cost-effective and sustainable.

Box 1 Childcare on Tea Plantations

A client consultation study describes the daily routine of a tea-picker in Kericho, mother of a one-yearold in her words as follows: "I'm up by 4.30 am, make uji (porridge), after drinking, wash utensils, andleave at 6.30 a.m. to pick tea. After I leave, my older pre-school child takes care of the baby, taking himwith her to the ECD center. I come home by 5 p.m. After work, I look for vegetables and on Sundays Ifetch firewood. While the vegetables cook, I bathe, and by 6 p.m., I cook supper. By 7.30 p.m. we areall in bed! The elder daughter washes up. I spend 2-3 hours of my waking time each day with mychildren".

C. CHILD DEVELOPMENT SERVICES IN KENYA

1.5 The demand for ECD services in Kenya has increased as a result of increasingnumbers of nuclear families with working/single-parents, most of whom are poor,seeking safe custodial care for their children. Results from the Kenya PovertyAssessment (1995) indicate that a third of rural households are female-headed. Theserural households, and those in plantation areas and urban slum settings, have the greatestneed but are least likely to have access to quality child care. (see Box 1). Parental interestin giving children a head start in education and providing opportunities for socializationare other reasons for the growth of ECD centers. More and more children enteringprimary schools have had some pre-school experience and in some areas, pre-schoolexperience is mandatory for admission to primary school.

Background 3

1.6 The demand for ECD services has resulted in the establishment of a network ofabout 20,000 child development centers, mostly in rural areas, covering 1 millionchildren primarily in the age group 3-6. The community has been the most importantpartner in the development of the centers, taking responsibility for the provision ofphysical facilities, caregiver salaries, organization of feeding programs and the provisionof learning and play materials. There is, however, wide variation in the type and qualityof services provided by these centers. Some communities receive financial andsupervisory support from NGOs and local govermments.

1.7 In the 1970s, GOK Box 2 NACECEstepped in to provide training NACECE has been developed largely with the assistance ofsupport and supervision for the the Bernard van Leer Foundation and has been deeply

centers. In 1984, the National influenced by the philosophy and style of the NGO. The

Center for Early Childhood institution can take much credit for the communitymobilization that has resulted in the rapid expansion of ECD

Education (NACECE) was centers in Kenya and for a having developed a quality

established at the Kenya training program. NACECE is a leader in ECD in the AfricaInstitute of Education. region, acting as a Regional Resource Center and the interim

NACECE was made home of the Africa ECD network currently being developedresponsible for the training of as a working group of the Donors to African Educationresponsible ~~~~(DAE) group.trainers, curriculumDdevelopment, research andcoordination. Over a 10-year period, with the assistance of the Bernard van Leer and AgaKhan Foundations, NACECE has developed a highly effective training curriculum andmethodology incorporating adult learning and participatory technologies.

1.8 The present ECD program is administered through three sections of the Ministryof Education: (i) NACECE, which is responsible for technical aspects such as trainingand curriculum development; (ii) the Pre-school Section of the Ministry of Educationwhich handles administrative matters such as registration of pre-schools, coordinationwith donors and NGOs, policy guidelines, and inter-sectoral coordination; and (iii) theMOE's inspectorate department which is responsible for the maintenance and monitoringof standards of the program. The Ministries of Health and Culture and Social Servicessometimes collaborate in the provision of services. In order to increase participation ofvarious partners at the grassroots level, MOE decentralized the program by establishingthe District Centers for Early Childhood Education (DICECE), which are responsible fortraining of pre-school teachers, developing localized curriculum and mobilizing parentsand communities and sponsors. In 1995, 57 districts in Kenya had full fledged (withresidential training facilities) or associate DICECEs.

D. ISSUES IN EARLY CHILDHOOD DEVELOPMENT IN KENYA

1.9 Despite a number of significant achievements in pre-school enrollment, someimportant issues relating to program funding, quality, efficiency and equity need to beaddressed.

Background 4

1. Low Levels of Investment in ECD

1.10 Although well documented research findings stress the importance of earlychildhood development for long term human resources development, GOK investment inthis sub-sector is very small. The government budget allocated to pre-school educationwas less than one percent of the Ministry of Education budget in 1994. Sub-sectoralallocations within the MOE's recurrent budget are shown in the following table:

Table 1 Sub-sectoral Allocations of the MOE's Recurrent Budget (Percentage shares)

1992/93 1993/94 1994/95

Pre-primary 0.1 0.1 0.1Primary 57.0 59.0 55.0Secondary 17.0 18.0 21.0University 17.0 16.0 17.0Other 8.0 7.0 7.0

1.11 GOK's contribution to pre-primary education is approximately US$ 0.60 per childyear. Corresponding GOK investments at the primary, secondary and university levelsare US$ 38, US$ 107 and US$ 1,400 (Kenya PER, 1994). The contribution of localgovernments is uneven and diminishing. Government funds are almost exclusively forpayment of salaries. The 1994 Welfare Monitoring Survey (CBS) showed thathouseholds are already spending about KSh 1,000 per year on average per pre-schoolchild on ECD services, an amount comparable to household expenditure on primaryeducation. Clearly GOK is under investing in this sub-sector. However, theGovernment's role mobilizing communities and parents should be emphasized alongsidethis scaling-up of investments in ECD. The sustainability of the program depends on theability of commnities to support the new allocations to this sector.

2. Quality

1.12 Untrained Teachers. As a result of the low overall funding levels for this sector,associated problems in the quality of pre-school ECD program have come into focus, themost serious of which is teacher quality. Pedagogical and practical skills in early childdevelopment are important for the effectiveness of ECD teachers and their capacity todeliver a quality ECD program. Only a third of the pre-school teachers have had anytraining in early childhood development. The present training system which is based on atwo-year in-service course introduced in 1985 had been developed and refined with donorsupport and experience. Training is conducted in 18 residential DICECE in the country.The main problem with the system is that training capacity is roughly 1,200 teachers peryear against a backlog of about 17,000 who need training and another 5,000 who requirerefresher training. Under the present system, 20% of the training cost is borne by thetrainees or communities who sponsor them. Community sponsorship of teachers is pooras many cannot afford to pay training costs.

Background 5

1.13 Inadequate SupervisionlDICECE Capacity. Each DICECE supervises onaverage 350 pre-school centers--from 50 in the smallest district to 760 centers in thebiggest district. With a typical staff of 6 persons per DICECE of which half of thepositions are vacant, and little or no transportation facilities, supervision is inadequateparticularly in districts with dispersed populations. Many centers are not visited at all bysupervisors who themselves are not sufficiently funded to move around their allottedareas.

1.14 Virtual Absence of Health and Nutrition Services. The period from birth to sixyears of age is the most vulnerable phase of a child's growth and development, whenadequate care and a sufficient diet are required for building a strong and healthyindividual. In existing pre-school centers health and nutrition services are hardlyprovided. A 1991 UNICEF evaluation indicates that only 20% of the centers had anyform of feeding programs. Health check-ups, growth monitoring and immunization aregenerally not performed in these centers.

3. Efficiency

1.15 Community Capacity. Community pre-schools are poorly organized andmanaged. The overall resource constraint is exacerbated by the lack of initiative andcapacity of the pre-school committees to raise and manage finances. Communities do notprovide adequate support to teachers, compensate them poorly and are reluctant toimprove facilities, provide materials or attend meetings. In many communities classesare held in the open and under trees. There is generally overcrowding as the space overallis small and classes are usually large-ranging from 20 to as many as 100 children.Improving the ability and will of the community capacity to manage the pre-schools iscritical to improving the efficiency of the system.

1.16 Participation of Under-Three Year Olds. The first three years are crucial in thephysical and psycho-social development of a child. In recent years, as a result ofincreasing numbers of women joining the labor force, urbanization, increase in female-headed households and increasing commercialization of farming, many centers in urbanand plantation areas are reporting a larger presence of children under the age of 3 in pre-school centers. At present GOK has no policy with respect to the care of under threes inECD centers and the kinds of services that must be offered to address the special needs ofthis age group.

1.17 Conditions in Lower Primary School. ECD centers are oriented to providing astimulating child-centered environment where children learn through play. The teachingphilosophy and methods in the lower grades of primary school are not consistent withECD experiences causing problems of transition for children entering the primary schoolsystem. The high drop out rates in grades 1 and 2 are partly attributable to difficulty ofchildren in adjusting to the formal school system. There is therefore a need to reconcileteaching methods and curricula to strengthen the linkages and smooth the transition intoprimary school.

Background 6

4. Equity

1.18 Limited Access. Gross enrollment data from the Ministry of Education indicatesthat about 35% of children between 3 and 6 are attending pre-school centers. Netenrollment is not easy to ascertain although data from the 1994 Welfare MonitoringSurvey suggests a net enrollment of about 15%. Attendance in pre-schools variessubstantially between the beginning and end of school term. District level data indicateslow participation rates in arid and semi arid regions, in parts of the coastal and westernprovinces and in urban slums. Access by the poor even within districts with highcoverage are very low. This is due to distance from schools and inability to pay schoolfees.

E. GOVERNMENT POLICY AND STRATEGY

1. Sector Policy

1.19 The 7th Kenya National Development Plan (1994-1997) emphasizes universalprimary enrollment by the year 2000 and improved transition to secondary education.Table I shows the current distribution of the MOE budget which is minuscule for pre-school education, and heavily skewed in favor of university education on a per capitabasis. Recent policy initiatives for a better balance in intra-sectoral allocation includecost sharing in public universities and the introduction of bursaries at the secondary level.These policy initiatives stem from a reduction in the growth of primary enrollment ratesas well as transition rates from primary to secondary. A major review of the educationsector, recently completed, identifies a series of additional cost savings initiatives as wellas costed improvements that the Government can take to reverse the negative trends toaccess, equity and quality of education in the country. Discussions are underway torefine and prioritize these recommendations in order to develop an appropriately timedand comprehensive action plan from which to move forward.

2. Sub-sector Policy

1.20 The Ministry of Education assumed responsibility for coordinating earlychildhood development in 1980. Policy in this sub-sector has evolved over the lastdecade and important aspects are articulated in the Sessional Paper No. 6 of 1988 andNational Development Plans (1989/93, 1994/96). Highlights of the policy include:(a) the principle of partnership between parents, communities, NGOs, donors andgovernment; (b) recognition of the need to provide integrated services that meet thesocial, emotional, cognitive, health, nutrition and care needs of children; and (c) theimportance of empowering families and communities to meet the needs of children.

1.21 A Letter of Sub-sector Policy outlining policies that will be implemented as aresult of the project has been submitted to IDA by GOK (see Annex A). It includes thefollowing commitments: (a) increased budgetary allocation for the sub-sector to at least1.0 % of the recurrent MOE budget at expiry of the IDA credit; (b) increased training andsupport of pre-school teachers; (c) strengthening of the management of ECD services

Background 7

from the community to the national level; (d) improved sustainability of ECD servicesand access by the poor; (e) establishment of inter-sectoral coordination and linkages; (f)development of policy approaches for the care of children under 3 years of age; and (g)establishing linkages between pre-school and primary school. The final Letter of Sub-sector Policy, a condition of Board Presentation, was received by IDA on May 23, 1996.

F. LEARNING FROM OTHER EXPERIENCES

1. Lessons from Kenya

1.22 The Aga Khan Foundation, while evaluating its support to preschools in KenyanMuslim communities since 1986, identified the ability and willingness of communities tomanage and finance their pre-schools as the critical factor affecting quality andsustainability. Communities need to be aware of the importance and benefits of earlychildhood education and be willing and able to pay for it. Teacher qualifications andtraining and opportunities to network with peers and communities as well as class sizeand the availability of teaching aids were also identified as important factors affectingquality. The foundation has identified the linking of community pre-schools with amechanism for training (and supervision) that is technically, organizationally andfinancially sustainable.

1.23 The Christian Children's Fund which established an office in Nairobi in 1973 isassisting 36,000 children and their families in 78 projects in Kenya. The projects include,but are not confined to support to pre-schools. For all programs, money is transferred tothe community and is managed by a team consisting of a chairperson, secretary andtreasurer with the approval of a parents' committee. Communities have to complete basicmanagement and financial training and employ acceptable accounting procedures beforethey receive funds. The main lesson from the CCF experience is that communitycapacity to manage funds is normally distributed with the bulk of the communities havinga satisfactory to good performance. Financial misappropriations had been rare due partlyto the financial controls instituted and to the training in management.

2. Other Experiences

1.24 A World Bank sector report on Early Child Development (Young, 1994) classifiesECD projects as following one or more of the following approaches: (a) deliveringservices to children through home-based or center-based care; (b) training caregivers andeducating parents; (c) promoting community and women's development; (d)strengthening institutional resources and capacities; and (e) strengthening publicawareness and demand. Significant ECD projects include Integrated Child DevelopmentProjects in India and Bolivia, Colombia's Child Development Project, Mexico's InitialEducation Project, Chile's Parent and Children Program and the Headstart program in theUnited States.

1.25 Based on research findings and field experience, the following factors have beenidentified as important for effective ECD programs: (i) worker selection, training and

Background 8

supervision; (ii) community and family involvement/participation; (iii) integrated (health,nutrition, education) inputs; and (iv) flexible, non-formal and culturally appropriateapproaches.

1.26 Worker Selection, Workload, Training, Supervision. Carefully definedrecruitment criteria for workers drawn from the local community so that they haveknowledge of and access to their clients and are trusted by them are the basic commonfactors of effective programs. Workloads that are manageable and focus on high prioritytasks, decentralized training systems that are reinforced by networking and supportivesupervision to demonstrate problem solving approaches and provide on the job trainingare other important common features.

1.27 Community and Family Involvement. Households and communities bearprimary responsibility for the care and development of children and their participation iscrucial to the success of child development programs. Mothers, fathers, grandparents andsiblings are important caregivers and need to be empowered to provide for thedevelopmental needs of children. Well designed ECD programs involve the communityin needs assessment (via client consultation studies) and in the implementation,monitoring and evaluation of the program.

1.28 Integrated Inputs. To meet the holistic developmental needs of a child, health,nutrition and education inputs are required. Weakness in any one aspect exacerbatesweaknesses in others. For example, the frequency and severity of illnesses is greater inchildren who are malnourished than those who are not. Children who are sick andmalnourished are less likely to benefit from stimulation/education inputs. Moreover, thesynergistic linkages between the health, nutrition and psycho-social development of achild ensure that the benefits of the inputs together is greater than the sum of the benefitsof the individual inputs. It does not follow from an implementation point of view that allthree inputs have to be delivered by a single implementing agency but that theirdelivery/availability at the level of the child/community has to be coordinated.

G. RATIONALE FOR BANK/IDA INVOLVEMENT

1.29 Human resources development is the cornerstone of IDA' s social sector strategyand ECD provides the foundation for human resources development. Available evidencesuggests that such investments yield substantial benefits, in particular for children frompoor households. Current levels of investment in ECD by poor families in Kenya and byGOK are inadequate to provide the required minimum package of ECD services. IDAcan fill the resource gap and use its vast experience in ECD in Latin America and Asia tohelp maximize the returns to the investment.

1.30 The project will increase the effectiveness and efficiency of existing ECD servicesin Kenya and will extend access of such senrices in targeted areas and to poorhouseholds. Without the project, the expansion of ECD services in Kenya would beslower, many of those needing ECD services would not have access to them and theimpact of such services would be less than with the quality improvements that will resultfrom the project. The project will help implement one of the recommendations of the

Background 9

Kenya Poverty Assessment by developing human resources in poor households and isconsistent with the Kenya Country Assistance Strategy that recommends targetedinterventions for vulnerable groups.

H. ROLE OF OTHER DONORS

1.31 The main donors supporting early childhood education in Kenya for the lasttwenty years have been the Bernard van Leer and Aga Khan Foundations. UNICEFsupports ECD activities in 11 districts including training of personnel, communitymobilization, curriculum development, health and nutrition activities and research andevaluation. The Van Leer and Aga Khan Foundations have been primarily involved insupport to the NACECE and in developing training, community mobilization and healthand nutrition activities. While the financial contribution of the donors is quite small theyhave been very important in supporting the indigenous development and expansion ofECD services in Kenya. NGOs such as the Christian Children's Fund, Action Aid,CARE and various church groups have sponsored significant numbers of childcare/development centers.

The Project 10

2. THE PROJECT

A. PROJECT OBJECTIVES AND STRATEGY

2.1 The development objective of the project is to improve quality and educability ofchildren in poor Kenyan households. The project seeks to achieve the following impact:(a) improved child cognitive and psycho-social development; (b) improved child healthand nutrition; (c) increased school enrollment at the appropriate age; and (d) reduceddropout and repetition rates in lower primary school. An important collateral objectivewould be to improve the human capital potential specifically of poor and otherwisedisadvantaged pre-schoolers as measured through increased access to ECD services andconsequent changes in the above impact indicators.

2.2 The project would follow a two-pronged, phased strategy. First, it would helpKenya systematically upgrade the quality and ensure the sustainability of existingcommunity owned and managed ECD centers by introducing and adapting best practicesin the management of these centers. Second, it would pilot a set of targeted interventionsto improve access to such services for poor communities and disadvantaged households.The project would consist of two core components: (a) improving ECD worker training,performance and supervision; and (b) community capacity building, mobilization andparenting education. Three pilot interventions will test options to develop cost-effective,replicable models for: (a) improving the financing of ECD services in poor communitiesby way of community grants; (b) raising nutrition and health standards of pre-schoolers,including those in the particularly vulnerable first three years of life; and (c) smoothingthe transition from pre-school to primary school. Both expansion and pilot-testing wouldbe introduced gradually in phase with improved community and Governmentmanagement capacity.

B. SCOPE, PHASING AND TARGETING

2.3 The project is targeted to 1.5 million pre-schoolers ages 0 to 6 years in poorhouseholds. The program also covers parents of these children Selection of districts forthe implementation of the various pilot packages is based on health and nutritionindicators, availability of ECD services, primary school enrollment rates, drop out andrepetition rates and income. The project would operate in selected districts throughoutKenya. It would initially concentrate on upgrading the performance and management ofaround 20,000 existing ECD centers which serve an estimated one million pre-schoolchildren through teacher training and community capacity building. During this firststage, pilot mechanisms for increasing ECD participation by poor children andimproving the scope and coverage of services would be developed and refined. A secondstage, involving the implementation of those pilot mechanisms along with expansion ofECD services to new areas, would take place as soon as the core program improvementcomponents have stabilized. Thus implementation of the proposed nutrition and healthpackage, transition program and community grants would take place during the secondstage. Necessary strategic adjustments will be made at the end of the third year after a

The Project 11

mid-term evaluation and last two years of the five year project will be devoted to aconsolidation phase.

2.4 The Health and Nutrition component will operate in 14 districts namely, Lamu,Kiambu and Thika plantations, Isiolo, Makueni, Mwingi, Garissa, Kisumu, Migori,Baringo, Trans Nzoia, Samburu, Turkana and Mt. Elgon. The Community Grants Pilotcomponent will be carried out in the following districts: Taita Taveta, Mombasa TanaRiver, Nyeri (Kieni) Tharaka Nithi, Wajir, Siaya Nyamira, Suba, Keiyo, Nandi,Marakwet, Narok, Bomet, Busia and Nairobi slums. The transition pilot will cover alldistricts but only in primary schools which have a pre-school within the compound.

C. DETAILED PROJECT DESCRIPTION

Project Components

2.5 Improved Teacher Performance Component (US$ 5.0 million). The teacher isa key determinant of service quality at the ECD center and his/her effectiveness isdetermined by the teacher's qualifications and training, supervision and support. Atpresent, initial teacher training consists of a two year in-service program including 6residential sessions of approximately 18 weeks during school holidays. About 1,200trainees are admitted to the course each year but the demand far exceeds the number ofavailable spaces. "Short courses" are conducted to meet the immediate trainingrequirements of some teachers who are not admitted to the regular training program. Ofapproximately 27,000 pre-school teachers in the country, more than 17,000 have notreceived any training. The most pressing issue relating to the ECD effort in Kenya is totrain the vast numbers of pre-school teachers already teaching children.

2.6 The project will improve and expand current training courses. Training will beoffered to 13,000 teachers in the two year training courses respectively over the projectimplementation period. The two year courses will take place in districts with facilities forresidential training. A nine-month induction course will be organized for the training oftrainers (TOT). The TOT will be improved to include adult learning and participatorymethods skills. 250 DICECE trainers will receive training during the course of theproject. The Pre-school Teacher Education Panel would meet at least once every sixmonths to review the training plan and recommend changes. The additional trainingneeds will be met by a combination of the following strategies: (a) staffing of DICECEsup to the full complement of six trainers and upgrading of select Associate DICECEs; (b)a revision in the content and methodology of each residential session; and (c)identification of alternate resources including distance education for the training of pre-school teachers. A covenant to ensure adequate staffing of the DICECEs with qualifiedpersons will be included in the credit agreement.

2.7 A five week orientation course will be organized for 8,550 teachers in the firstthree years of the project. This course would help meet the needs of untrained teacherswho cannot be admitted initially to the two year program and will provide the foundationfor later in-service training. This overview course would consist of 5 modules covering

The Project 12

basic child development, health and nutrition, pre-school activity areas, participation,parent education and professionalism. The course will be offered in locations accessibleto the ECD teachers. Course notes would be prepared in a loose-leaf notebook format sothat the same materials can be built upon during later training programs. Short courses oftwo week duration will be conducted to serve the needs of refresher training and to helptrained teachers upgrade their skills. NACECE will be responsible for developing theintroductory course and evaluating its implementation in collaboration with the Pre-school Teacher Education Panel. Costs associated with this course include thedevelopment of curriculum, printing of course materials, training of trainers and fees fortrainers. Participants will be required to make a contribution toward the cost of training.

2.8 Teachers will receive supportive supervision from DICECE staff and other MOEpersonnel and opportunities to meet in an in-service review/training session at least onceevery term and to network and share experiences. The selection of teachers for trainingand the examination process will be streamlined. Details of this component are includedin Annex B.

2.9 Community Mobilization and Capacity Building (US$ 3.5 million). Thiscomponent is designed to: (1) mobilize parents and communities to increase the rate ofenrollment in ECD and improve the quality of ECD services; (2) improve thecommunity's capacity to organize, manage and monitor ECD services; and (3) to equipparents and communities with relevant parenting skills. A detailed description of thiscomponent is included in Annex C.

2.10 Project orientation sessions will be held at the national and district levels tofamiliarize personnel from the different ministries and NGOs about project objectives andactivities. Traditional venues for community mobilization such as harambee (fundraising) meetings, folk media, agriculture shows, PTAs, religious meetings and barazzas(meetings of the chief) will be used as opportunities to promote ECD. Community basedresource centers will be developed in targeted districts. Linkages will be made withexisting Family Life Training Centers. IEC materials including posters, flashcards/charts, radio programs and other mass media campaigns will be developed as partof a social marketing strategy to improve ECD. In districts where pilot activities areproposed, community participatory development workshops will be used to buildmanagement capacity in pre-school committees. Communities will learn to prioritizeECD needs and inputs, elect a management board and define the tasks of the officebearers. These will include defining gaps in service and how to fill these, identificationof available resources and coordination of inputs, as well as supervising performance.This training will be a prerequisite for communities receiving the pilot components. Thetarget for this sub-component is to build management capacity in a total of 4,500communities during the implementation of the project.

2.11 Caregivers who will receive parenting education will include mothers,grandmothers and childminders employed to provide care for very young children. Thetraining will cover the following subjects: milestones of child growth and development,needs of children in different phases of growth and development, how children learn, careand stimulation, the role of play, etc. The training will be conducted through workshops,

The Project 13

seminars and demonstrations lasting for about 2 weeks. Participatory approaches will beused. Each training session will cover about 30 caregivers. This component will beimplemented where necessary with the assistance of NGOs who will be contracted at thedistrict level. Costs associated with this component include development ofcommunication materials, training, transportation and meeting costs.

2.12 Health and Nutrition Pilot (US$ 4.5 million). The health and nutritioncomponent would test a replicable model emphasizing prevention and promotion tooptimize health and nutrition standards of pre-school children at the community level.The component would initially focus on two target groups: children 3-6 years of age whoattend ECD centers, and children 1-3 years of age who constitute the next generation ofcenter beneficiaries. Efforts will also be made to involve the lower primary classes. Theprincipal interventions would be improved caring practices and community-based healthand nutrition services. Attention would be paid to improving growth patterns of childrenunder 1 year of age through parent education for better maternal breastfeeding andweaning practices, immunization, feeding and rehabilitation of malnutrition, routine de-worming in high-prevalence areas, micronutrient supplementation (iron, Vitamin A andiodine in goiter areas), health, nutrition and developmental screening at entry to and exitfrom ECD centers, diagnosis and treatment of common conditions, as well as referral tohigher levels of care (health center/district hospital). Parental education will also beprovided to promote improved health behavior and child care in the home andenvironmental health.

2.13 The health and nutrition pilot will be implemented in about 2,000 existing andnew centers in 10 districts selected on the basis of high levels of stunting and low levelsof service coverage. The component would test two different modes of delivery: (a) aGOK model, where the pre-school committee selects a community health worker (CHW)and the health department provides technical supervision and provides supplies; and (b)an NGO model, where a community selected CHW receives support from an NGO whodoes the initial training and periodic follow-up in collaboration with the healthdepartment. The pilot would be implemented in five different divisions annuallybeginning in the second year of the project and would finance training, equipment,medications, and incremental operating costs. Any procurement of drugs and suppliesunder this component will conform to Bank procurement guidelines. Details of thiscomponent are described in Annex D.

2.14 Community Grants/Support Pilot (US$ 5.0 million). The objectives of thiscomponent are: (a) to assist the poorest communities in developing financially viable andsustainable ECD services; (b) to assist the most needy pre-school children to access ECDservices; and (c) to test community-based innovations for financing, managing andimplementing ECD efforts. The WB (1995) series of studies on early child developmentshow that community owned and managed early child development centers (ECD) relyalmost exclusively on parents' fee contributions for operating and maintenance costs, andreceive virtually no direct contributions from government. These centers lack sustainablefinancing since fees are inadequate and irregular and are therefore insufficient to pay forrecurrent costs such as teacher salary, learning materials, maintenance of facilities or for

The Project 14

feeding or health services. Committees need to improve the sustainability of thesecenters and develop alternative models for ECD.

2.15 This pilot will provide ECD grants for 2,000 community/parent-owned ECDcenters in order to provide them with a steady income stream to meet monthly recurrentcosts. The maximum grant amount per center over the four years of the project will beKSh 125,000 ($2,500). One model proposes that an ECD Trust Fund be created whereapplicable. The Trust Fund will be held in a protected interest bearing trust account inthe nearest approved bank with three signatories designated by the ECD Committee. Theaccount can be used to pay for the center's eligible expenditures (such as augmentingteachers salaries, learning materials, center improvements, bursaries and school healthand nutrition). Every month the ECD committee will deposit the fees collected and makewithdrawals against pre-approved budget for eligible expenditures which must besubmitted together with the withdrawal request. Every quarter, the statements ofexpenditure will be sent to the DICECE/NGO with monthly budgets attached foraccounting and auditing purposes.

2.16 The annual interest earnings on capital would then enable the community to funda significant proportion of the operating expenses of the ECD center. Parents willcontinue to pay fees (except where it is agreed that fees may be waived in respect of thepoorest families) and any savings can be used to periodically increase the capital fund.The community will be encouraged to further build up the fund since inflation is likely toeat up the capital if no new funds are added or if fees are not consistently collected.

2.17 This financing mechanism is intended to make the ECD center financially self-sustainable beginning in the third year of the project. The purpose of the piloting is tounderstand and learn from the experience. Technical assistance in self-management,accounting, fund raising (by income generating activities), planning and budgeting willbe provided. A description of the procedures for selecting the centers, making the awardand accounting for the funds at each level is in Annex E. Individual approaches will bedetailed in a Memorandum of Understanding (MOU) to be signed with the selected NGOand approved by IDA.

2.18 Pre-school to Primary School Transition: (US$ 0.8 million). The high dropout rates between the first and second grades in Kenya have been attributed in largemeasure to the harsh learning environment in lower primary schools. It is proposed toremedy this situation by harmonizing the curriculum and teaching methods in the lowerprimary school with those of pre-school. This component will be piloted in those primaryschools which have pre-schools attached, i.e., those that share the same premises andmanagement committees. The component will facilitate interaction between the pre-school and lower primary classes. Project inputs will include the development ofteaching methodologies and curriculum for lower primary school, retraining of primaryschool teachers, field education officers and primary teachers' college tutors.Appropriate teaching materials will be developed.

2.19 Institutional Strengthening, Monitoring and Evaluation (US$ 9.7 million).This component will strengthen the ECD section of the Ministry of Education and

The Project 15

NACECE to manage and implement the program. This involves training and capacitybuilding for national and district level management. It also involves the set-up ofmonitoring and evaluation capacity.

D. PROJECT MANAGEMENT AND COORDINATION

2.20 The National Steering Committee. A description of project management andcoordination arrangements is in Annex F. The project will receive overall policy andstrategic direction from an intersectoral ECD Implementation Committee (NECDIC)chaired by the Permanent Secretary, Ministry of Education. The composition and termsof reference of the committee must be satisfactory to IDA. The Committee would meet atleast once a quarter to discuss and approve project work plans and budgets, review projectprogress and impact and discuss policy issues arising from the implementation of theproject. Constitution of the NECDIC is a condition of Board Presentation.

2.21 The ECD Section of MOE. The Permanent Secretary, Ministry of Education(MOE), would have overall responsibility for project management, coordination and theoverall flow of project funds. The ECD Section in the Directorate Division of theMinistry of Education will be strengthened and the head, whose qualifications andexperience will be satisfactory to IDA, will be named Project Coordinator. The ProjectCoordinator will: (a) be the Secretary of the ECD Implementation Committee; (b)facilitate project coordination and implementation and monitor project progress; and (c)handle IDA's administrative requirements. The ECD section will be strengthened withnew professional positions for Monitoring and Evaluation, Health and Nutrition andCommunity Capacity Building, Accounting and Supplies, and two support staff. Theseposition have all been filled up.

2.22 The National Center for Early Childhood Education. NACECE is managedby a Coordinator and Deputy Coordinator and has 12 professional staff in 6 sectionsresponsible for training, curriculum, child growth and development, communityeducation, resources management and research and evaluation. The filling up of keyvacancies is a condition of effectiveness. Proposals for strengthening this establishmentare under consideration of the Kenya Institute of Education. Job descriptions of existingstaff and a staff development plan satisfactory to IDA are to be included in the ProjectImplementation Manual. Funds have been allocated for obtaining the services oftechnical specialists as necessary. Assurances will be sought that NACECE will bestaffed with suitably qualified persons throughout the project period.

2.23 The District/Municipal Steering Committee. An intersectoral District ECDImplementation Committee (DECDIC) will be constituted at the district municipal leveland would meet each month to plan and monitor project implementation and coordinatethe activities of all actors involved in the delivery and promotion of ECD services at thedistrict level. The Committee will be chaired by the District Education Officer and theProgram Officer, DICECE will be the Secretary.

2.24 District Centers for Early Childhood Education. DICECEs will be staffed upto the full existing establishment of 6 trainers and staff strength will be increased to 8 in

The Project 16

some DICECEs by the end of the project. This will involve the filling up of 66 vacantpositions (for which the process has already been initiated by the Teachers' ServiceCommission), and the establishment of essential new positions during the course of theproject. Supportive technical supervision of pre-school teachers and their ECD activitieswould take place through quarterly visits from DICECE trainers. DICECE will bestrengthened with necessary equipment and supplies and improved mobility. NACECEwould have a general oversight role in regard to DICECE supervision. Assurances willbe sought at negotiations that DICECE will be adequately staffed during the projectperiod.

2.25 Pre-School Committees. Communities themselves would continue to haveprincipal responsibility for ECD centers. The management capacity of pre-schoolcommittees would be strengthened, parenting education would be provided andcommunities would be mobilized for greater participation and involvement in ECDservices. Pre-schools attached to primary schools would be managed by statutorycommunity primary school committees, whose membership would expand to include thepre-school teacher and representatives of parents of pre-school children. Terms ofreference and composition of the committees are elaborated in the ProjectImplementation Manual must be satisfactory to IDA.

2.26 Management of Individual Components. (a) NACECE will be responsible forimplementing the core components of Improved Teacher Performance/Training andCommunity Mobilization and Capacity Building. (b) Two implementation models willbe tested under the Community Grants and Health and Nutrition components. In the firstmodel, NGOs will be selected at the national level to implement the pilots in selecteddistricts according to a Memorandum of Understanding (MOU) signed by the NGO andGOK and approved by IDA. The signing of an MOU with at least two national NGOs isa condition of credit effectiveness. The selected NGO will mobilize the communities,administer grants, supervise related activities, train Community Health Workers andCommittees and provide logistic and material support for the activities agreed upon in theMOU. In carrying out the above activities, NGOs will work in collaboration withestablished government machinery and other agencies in the district. Criteria forselection of NGOs at the national level include an established working relationship withGOK, experience in child development activities, i.e., acceptance to work in targeteddistricts, readiness to account for all financial transactions as laid down in the MOU andcapacity for community mobilization particularly in the administration of grants. Inaddition, the national level NGOs must contribute counterpart funds to cover overheadadministrative costs and project activities and have financial management capacity. TheNGOs will be reimbursed for their services for utilization of funds for eligibleexpenditures according to the MOU. The NGOs shall raise a minimum of US$ 100,000or 25% of the cost of the proposed activities implemented by them. In the second model,GOK will work closely with the ECD committees to implement the same activities aslisted above in the NGO model. GOK may contract district level NGOs whereapplicable. Funds will flow directly to the districts, where they would be disbursedaccording to work plans approved by NECDIC and DECDIC. (c) The Transition Pilotwill be implemented by the MOE inspectorate and KIE.

The Project 1 7

2.27 Coordination with the Ministry of Health. At the national level, an officer tobe designated the Health and Nutrition Officer (HNO) will be responsible for thecoordination of the Health and Nutrition component. The officer will chair a H&Nworking group to assist in the coordination and monitoring of the component. TheWorking Group will have representation from the MOE, MOH, KIE, Inspectorate, NGOand selected districts. The HNO will represent the MOE in the MOH National TechnicalCommittee to ensure understanding of policy issues and keep the National Committeeinformed of the project progress. The Ministry of Health will be represented in NECDIC.At the district level the DICECE will have a Health and Nutrition Officer (HNO) tocoordinate the Health and Nutrition Component. A Health and Nutrition Committee willbe constituted to assist the officer in planning, implementation and monitoring of thecomponent. The Committee will work closely with the divisional staff to plan andbudget, implement and monitor the project activities. The health and nutrition officerwill report on the project progress to the District Health Management Team (DHMT).The DHMT will be represented in DECDIC to ensure interdepartmental coordination inthe implementation of the project.

E. MONITORING AND EVALUATION

2.28 An effective monitoring and evaluation (M&E) system will be an integralcomponent of the project. The M&E component will have three goals: first, to track thesupply of ECD and other inputs in the project; second, to monitor project outcomes, suchas increased participation, especially by disadvantaged groups, in ECD centers andimproved quality of ECD services; and finally, to evaluate the impact of the project andits components, on measures of child outcomes, such as the cognitive, social and physicaldevelopment of children. A detailed description of this component is in Annex G.

2.29 The M&E system will comprise three elements: monitoring, evaluation andspecial studies. Monitoring of input utilization and process outcomes will be performedlargely at the center level by means of child cards, center registers and wall charts, and asurvey of ECD centers. Center teachers or workers will aggregate information from childcards each month onto a center register and a wall-chart that would be put up in the centerfacility. The center register will also include information on input use, number ofsupervisory visits, and time spent by the center worker in major activities (e.g., teaching,health and nutrition, counseling, training, etc.). These data would be transmitted eachquarter to the DICECE office, where it would be entered in a computerized database andanalyzed. Simultaneously, the database would be transmitted to the NACECE and theMOE.

2.30 An important element of the MIS will be the supply of certain aggregatedinformation and profiles from the DICECEs to each of the centers in the district foreffective planning purposes. For instance, centers will receive information on how theirenrollment trends, nutritional status indicators or community mobilization effortscompare against those of other centers in the district. The pointing out of specific areasof weaknesses and strengths to each center would permit centers to deploy their resources

The Project 18

differently or to target their ECD services more narrowly to specific age, sex orsocioeconomic groups.

2.31 The evaluation component will attempt to estimate the impact of the project, andits various components, on child outcomes, using household- and child-specific samplesurvey data. It will consist of three parts: (1) a household survey; (2) a survey of ECDcenters; and (3) a participatory beneficiary assessment. For each, surveys will beconducted at baseline (by January 1997) and repeated at mid-term (January 1999) andfinally at the end of the project (January 2001). For the household survey, samplingdesign will have to be developed so as to ensure inclusion of control households that willnot have access to project-supported ECD centers as well as sufficient coverage ofhouseholds exposed to different project components. The survey of centers will focus onphysical facilities, involvement of school and PTA committees in center management;teachers, financing and the frequency and coverage of school-wide health and nutritioninterventions. The participatory beneficiary assessment is intended to assess beneficiaryneeds with reference to child development and responses to the services provided by theproject.

2.32 The third element of the M&E system will be special studies that (i) addresspolicy development issues, (ii) deal with operational research issues, and (iii) evaluateany specific inputs not covered by the regular M&E activities (e.g., training andsupervision). For example, special studies will be commissioned to monitor thequalitative changes taking place among parents and communities in behavior andattitudes, as well as monitoring such things as the effectiveness and appropriateness ofcurriculum changes as perceived by teachers.

2.33 At the national level, the overall manager of the component would be the head ofthe Monitoring and Evaluation group within MOE. He or she would chair an M&Eworking group, whose membership would include representatives from the Ministry ofEducation, Ministry of Health, Central Bureau of Statistics, NGOs and technicalconsultants. At the district level, a steering committee for M&E would be establishedunder the chairmanship of the DEO, and would include the District Statistics Officer, theDICECE Officer and representatives of pre-school committees, and NGOs. Thiscommittee would oversee all M&E activities in the district.

2.34 The M&E component will include a significant amount of training for staff at alllevels: center teachers and workers, DICECE officers and trainers, and NACECE andMOE staff. The training will cover maintenance and updating of child and centerrecords, computerized data entry, computerized database management, simple dataanalysis, and the use of analysis for planning and implementation purposes.

Project Cost and Financing 19

3. PROJECT COST AND FINANCING

A. PROJECT COST

3.1 The total project cost is estimated at US $35 million equivalent, including taxesand physical and price contingencies (US$ 6.5 million) but not including an estimated on-going contribution by beneficiaries of about US$ 10 million a year or US$ 50 millionduring the project period. The foreign exchange component is about US$ 5.3 million or15% of project cost. Project costs by component are summarized in Table 2. Detailedproject cost tables are provided in Annex H. Project costs are estimated in March 1996prices and include physical contingencies of 5% for vehicles, furniture and equipment,5% for supplies, and 2% for maintenance. Price contingencies were calculated 4% in1996, 6% in 1997 and 6% for each year until 2001.

Table 2 Project Cost Summary (US$ thousands)

Local Foreign Total % Foreign % TotalExchange Base Cost

A. Core Service Delivery Support1. Improved Teacher Training2. Community Capacity Bldg. 4,812 120 4,932 2% 17%

& Mobilization 2,976 602 3,578 17% 12%

. Pilot Components1. Health and Nutrition 2,999 1,483 4,482 33% 16%2. Community Grants 5,000 0 5,000 0% 18%3. Transition to Primary 809 0 809 0% 3%Schools

C. Project Management1. Institutional Strengthening 6,809 1,928 8,737 22% 30%2. Monitoring and Evaluation 838 178 1,016 18% 4%

Total Baseline Cost 24,243 4,311 28,555 15% 100%

Physical Contingencies 1,212 216 1,428 5%

Price Contingencies 4,364 776 5,140 18%

Total Project Cost 29,819 5,302 35,122 123%

3.2 The estimated cost of community capacity building and mobilization is based onrecent experiences of the NACECE and NGOs such as the Aga Khan Foundation andChristian Children's Fund (CCF) in Kenya. Teacher training expenses are based on thecurrent training e-penses of NACECE. Training costs are primarily related to board andlodging expenses and costs of training materials. Teacher training will be conducted inexisting training centers such as Primary Teachers Training Complexes. Appropriaterental expenses are budgeted for this purpose. The cost of community grants is estimatedfrom recent costing exercises of packages of "good practice" early child developmentservices. They are estimated on a per capita basis. The health and nutrition componentwill involve a start up cost -such as provision of weighing scales and materials, and a


recurrent component estimated at US$ 2 per child per year. The preschool to primaryschool transition component involves the development and testing of curriculum,orientation of primary school teachers and pedagogic materials. For institutionaldevelopment, it is expected that the inspectorate and NACECE will be strengthened withstaff and mobility. For monitoring and evaluation, three surveys are planned and acomputerized MIS system will be installed at the MOE.

B. RECURRENT COST AND PRICING SUSTAINABILITY

3.3 Project incremental recurrent costs will be incurred primarily by expenditures foradministrative support and salaries of incremental personnel involved in projectimplementation. A total of 66 professionals will be re-deployed to ECD by the end of theproject period from a teacher pool of over 200,000 primary school teachers managed bythe Teachers' Service Commission. Re-deployment is expected to occur fromunderutilized primary school training facilities to pre-school training. There will be noincrease in the total strength of the civil service. Funds required for ECD maintenanceoperations at the end of the project period will be US$ 1.5 million a year or about 1.5 %of the MOE budget. Additional costs of expanding the pilot interventions such ascommunity grants, health and nutrition materials and services will depend on the successof the pilots and GOK interest in replicating/expanding them.

3.4 Households and communities are already spending about US$ 10 million per yearon community owned ECD centers. They will continue to be the most important sourceof funds for ECD programs in Kenya and the project's sustainability will rest principallyon their continuing support. A significant part of the project is directed to capacitybuilding of parents and pre-school committees which is expected to enhance the capacityof communities to generate additional funding for the development of ECD services.Parents will continue to pay appropriate fees in the community run preschools. Therelative contributions from the main sources of funding are shown in the following table:

Table 3 Annual ECD Expenditure Per o.'Child by Source (US$)

Before Project During Project Post Project

Household Communities 10.0 10.0 12.0GOK 0.5 1.0 1.5IDA/Donors 4.0 0.5

C. FINANCING PLAN

3.5 The proposed credit of US$ 27.8 million would finance 79. 1% of the project cost.It will cover 90% of the foreign exchange expenditures, and 57% of local costs. Thegovernment will finance US$ 5.3 million or 15% of the total costs. Donors, throughselected NGOs, will finance 6% of the project cost. Communities and householdsthrough their cash and in-kind contributions for the development and upkeep of the early


child centers, and through user fees for households with young children enrolled arealready contributing about US$ 10 per child year and will continue to be responsible forthe operational cost of the centers during the project period. Table 4 summarizes thefinancing plan for the project.

Table 4 Financing Plan (US$ millions)

Foreign Costs Local Costs Total %

IDA 4.8 23.0 27.8 79Government of Kenya 5.3 5.3 15Donors 0.5 1.5 2.0 6Total 5.3 29.8 35.1 100

Project Implementation 22

4. PROJECT IMPLEMENTATION

A. PROJECT PREPARATION

4.1 A Project Preparation Team constituted by the Ministry of Education wasresponsible for the preparation of the project. Members of the team have considerableexperience in managing ECD services in Kenya and in working with donors such as theBernard van Leer and Aga Khan Foundations and UNICEF. With the assistance of Bankmissions, the team identified a number of project preparation studies to be prepared witha Japanese Project Preparation Grant and selected local consultants to carry out thestudies. The studies included the following: (1) a nationwide sample survey of existingECD services in Kenya intended to provide a descriptive analysis of the characteristics ofexisting ECD centers classified by location and sponsor; (2) a client consultation surveyto understand the behavior of households with respect to ECD services with the goal ofidentifying the priority ECD related needs of the target households; (3) ECD services forunder three year-olds to review program experience in providing services for thisvulnerable group and recommend program options; (4) a financing study to estimate thecosts of delivering different ECD services in Kenya and recommend options forfinancing; (5) a management study to recommend a structure for the cost-effective andefficient management and supervision of ECD services; (6) a training study to reviewexisting training programs and capacity, identify training needs under the project andresource requirements; (7) a school health and nutrition services study to review existingschool health programs and make recommendations for linking them to service provisionin ECD centers; and (8) a study on the transition from pre-school to primary school torecommend ways of assessing child readiness for primary school and ensuring a smoothtransition from pre-school to primary school. Final draft reports of these studies werediscussed at a workshop in July 1995 with a group of participants from GOK, donors,NGOs and managers of ECD services. Donors and NGOs have participated in a numberof brainstorming and information sharing sessions during the course of projectpreparation.

B. IMPLEMENTATION SCHEDULE

4.2 The project will be implemented over a five year period (1997-2002) in a phasedmanner. Phasing of the various pilots will be determined by the pace of implementationof the core activities - viz. the training of teachers and community capacity buildingwhich are prerequisites for the implementation of the additional pilot activities. The firstyear of the project will be devoted to implementing the core components in about 5,000existing centers and in developing and refining the pilot health and nutrition, grants andbursaries and primary school transition activities. The baseline survey of the evaluationcomponent will also be implemented in the first few months after project launch. Thepilot activities will be implemented from the second year onwards and will be assessedand fine-tuned during a mid term evaluation by the end of the third year. The last two


years will be devoted to further expansion and consolidation of the project. Half-yearlyproject reports will be submitted to IDA. Annual work plans and budgets for each fiscalyear (July to June) will be submitted to IDA in January each year, following a jointreview of project implementation. The submission of a draft Annual Work Plan andBudget for the first year of implementation has been provided to the Bank. A mid-termreview of the project will be held in February 1999. The results of the evaluation,particularly of the pilots, will be used for purposes of structured learning and anynecessary adjustments in project design and implementation.

C. PROJECT IMPLEMENTATION MANUAL

4.3 A draft Project Implementation Manual (PIM) was submitted to IDA on April 1,1996. The outline for the manual is provided in Annex I. The Manual lists the districtstargeted for implementation of the pilot activities and the criteria for their selection. Tofacilitate the process, a ranking of districts on the basis of composite income, nutritionand education indicators was developed. On the basis of these indicators, GOK has madea preliminary selection of 24 districts for the implementation of the pilot components.The further selection of districts for the implementation of each pilot will be made on thebasis of on-going activities in the districts. The selection of NGO led and GOK leddistricts, similarly, will be based on the extent and nature of NGO presence in selecteddistricts. No district will have more than one type of pilot funding and NGO/GOK willprovide leadership in a different district. Implementation of the pilots at the communitylevel is not expected to begin before a full year of preparation including the selection ofNGOs and training. The PIM lists the activities under each component, personsresponsible, time table and costs. The manual also provides job descriptions,qualifications, recruitment timetables and work routines for key positions at variouslevels. The submission of a final PIM is a condition of Board Presentation. Anysubsequent changes to the PIM will be subject to clearance by IDA.

D. PROCUREMENT

4.4 Management and Procedures. Procurement will be managed by the PreschoolSub-Division of the Ministry of Education (MOE). Procurement staff would bereassigned within MOE and provided with further training and assistance. The head ofthe PPE section who is the Project Coordinator would report to the Permanent Secretaryof MOE and be further accountable to the Ministerial Tender Board (MTB), MOE, or theCentral Tender Board (CTB) for procurement decisions above certain thresholdsspecified in GOK procedures. Measures to modify relevant procurement procedures, inorder to improve efficiency, would be discussed between GOK and IDA in the broadercontext of the next Country Procurement Assessment Report (CPAR).

4.5 As part of the PIM, a draft procurement plan has been prepared. For the first yearof project implementation it would detail the tasks and time periods for processing therequired procurement packages, including IDA reviews. The procurement plan would be


updated periodically and reviewed during supervision missions. Draft bidding documentsfor ICB and NCB procurement will be prepared prior to Board presentation.

4.6 IDA Guidelines for Procurement (1995, revised in 1996) and IDA Guidelines forUse of Consultants (1981) would be followed for all project components funded by theIDA Credit. The Bank's Standard Documents for Procurement of Goods (1995) and theBank's Standard Form of Contractfor Consultants' Services (1995) would be used forall procurement under International Competitive Bidding (ICB) procedures andconsultancy contracts for Technical Assistance, respectively. Where no relevant contractdocuments have been issued by the Bank, other forms acceptable to the Association shallbe used. Eligible domestic suppliers of goods bidding on ICB contracts would receive apreference of 15% in bid evaluation, in accordance with Appendix 2 of IDA Guidelines.

4.7 Prior Review. All procurement packages for goods, drugs and medical supplies,materials production and maintenance contracts with an estimated contract value aboveUS$ 100,000 would be subject to IDA's prior review, in accordance with Appendix 1 ofIDA Guidelines. All consulting contracts with firms with a contract value above US$100,000 or with individual consultants with a contract value above US$ 50,000 would besubject to IDA's prior review. In addition, all terms of reference for proposed consultingassignments would be subject to IDA's prior review. Bank's standard bid evaluationformats will be used in presenting evaluation reports.

4.8 In order to ensure that appropriate procedures are being followed, the first threecontracts for goods, irrespective of contract value, would be subject to IDA prior review.During supervision missions, IDA would review one in five randomly selected contractswhich are below these prior review thresholds. Overall, this review process would cover100% of ICB contracts and about 60% of NCB contracts.

4.9 Procurement Methods. The procurement of vehicles, motorcycles, bicycles,office equipment, teaching equipment, tools, drugs and medical supplies, etc. would becarried out in reasonable packages of similar goods through:

(a) International Competitive Bidding (ICB), if the estimated contract valueper package is more than US$ 100,000.

(b) National Competitive Bidding (NCB), if the estimated contract value perpackage is more than US$ 50,000 but less than US$ 100,000, up to anaggregate amount of US$ 4.1 million.

(c) International Shopping Procedures (IS) in accordance with Section III ofIDA Guidelines, on the basis of at least three quotations from reputablesuppliers in two different countries, if the estimated cost per package ismore than US$ 20,000 but less than US$ 50,000, up to an aggregateamount of US$ 100,000. As an alternative to IS, IAPSO procedures willbe followed as appropriate.


(d) National Shopping Procedures (NS) in accordance with Section III of IDAGuidelines, on the basis of at least three quotations from local suppliers, ifthe estimated cost per package is less than US$ 20,000, up to an aggregateamount of US$ 80,000. Community grants component will also involvevery small procurement amrounts as the total grant per center will notexceed US$ 5000 over the life of the project. Procurement of such goodswould be by national shopping procedures which would aggregate notmore than US$ 1,000,000.

(e) Pharmaceuticals will be procured by ICB. However, where these arerequired to be distributed in remote areas in small kits over the projectperiod, pharmaceuticals will be procured from UNIPAC or UNICEF up toan aggregate of US$ 1.2 million may be arranged provided such items areavailable in their stocks. Such arrangements are considered appropriate inthis case because of the experience gained by the above agencies insupplying these kits in the past.

4.10 Training. Annual training plans identifying the nature of training, persons to betrained, training timetable and venue and estimated cost will be reviewed and clearedwith IDA. Foreign training shall not exceed US$ 120,000 over the life of the project.

4.11 Technical Assistance Consultancies. The selection of consultants to providetechnical assistance, as identified in the project components would be carried outaccording to IDA Guidelines, including shortlisting, letters of invitation and evaluation oftechnical and price proposals. Advertisements in the General Procurement Notices wouldbe issued for Goods to be procured through ICB. Consulting assignments that willbecome available under this project will also be advertised. This will assist in thepreparation of the short list for consulting contracts. Selections for short-termassignments and the selection of individual consultants for contracts below the priorreview threshold would follow simplified procedures specified in Part V of theGuidelines.

4.12 The selection of NGOs to provide Technical Assistance would be on acompetitive basis through shortlisting of several qualified NGOs and otherwise, followIDA Guidelines for Use of Consultants.

4.13 The aggregate cost of consultancies to provide Technical Assistance is estimatedat US$ 3.2 million.

4.14 Table 5 summarizes the project elements and their estimated costs and proposedmethods of procurement.


Table 5 Summary of Procurement Arrangements (US$ thousands)

Project Element ICB NCB Other NIF Total

A. GoodsVehicles 1,747 1,747

(1,660) (1,660)Equipment 1,254 627 208 2,089

(1,129) (564) (187) (1,880)Phannaceuticals 1,325 1,325

(1,193) (1,193)Learning Materials 1,301 3,904 5,205

(1,170) (3,513) (4,683)B. Consultancy

Technical Assistance 2,007 1,230 3,237(2,007) (2,007)

Training 6,878 6,878(6,878) (6,878)

C. MiscellaneousCommunity Grants 3,690 1,285 4,975

(3,690) (3,690)Recurrent Expenditures 9,666 9,666

(5809) (5809)Total 5,627 4,531 22,449 2,515 35,122IDA-financed (5,152) (4,077) (18,571) (27,800)

Notes:

1. Figures in parentheses are respective amounts financed by IDA credit.2. Total project cost include duties, taxes, and contingencies3. NIF (not IDA-fnanced) components include procurement by other donors.

E. DISBURSEMENTS

4.15 The proposed credit would be disbursed over a five-year period. The projectcompletion date will be December 30, 2001 and the credit closing date, June 30, 2002.The IDA Disbursement Schedule is shown in Table 6.

Table 6 Estimated IDA Disbursement Schedule (US$ millions)

FY97 FY98 FY99 FY00 FY01 FY02 FY03

Annual 0.8 2.2 4.4 7.1 6.0 5.4 1.9Cumulative 0.8 3.0 7.4 14.5 20.5 25.9 27.8

1. Disbursement Percentages

4.16 The project would disburse against 100% of foreign exchange costs and 80% oflocal cost of the costs of goods (vehicles, equipment, pharmaceuticals, and leamning


materials), 100% of training costs, 100% of the cost of grants, assistance and 70% ofincremental operating costs. Table 7 shows the allocation and disbursement of the IDAcredit.

Table 7 Allocation and Disbursement of IDA Credit (US$ millions)

Category of Expenditure Proposed IDA Allocation % of Expenditures

Goods 9.5 100% of foreign and80% of local expenditures

Technical Assistance 2.0 100%Training 6.9 100%Community Grants 3.7 100%Recurrent Costs 3.3 90% of expenditures incurred prior

to July 1997 & 60% thereafter.Refunding of Project 1.0

Preparation AdvanceUnallocated 1.4

Total 27.8

2. Required Documentation

4.17 Disbursements would be made against standard IDA documentation with thefollowing exceptions, for which certified Statements of Expenditures (SOEs) would beused: (i) contracts for the procurement of goods costing less than US$ 100,000-equivalent; (ii) consultant services contracts by firms costing less than US$ 100,000equivalent, and by individuals costing less than US$ 50,000 equivalent; (iii) all operatingcosts; (iv) all local training, and overseas training costing less than US$ 10,000equivalent; and (v) community grants. SOEs would be certified by the ProjectCoordinator and the MOE.

3. Special Account

4.18 In order to facilitate the availability of funds when needed, on the request ofGOK, an advance out of the IDA credit will be deposited in US dollars in a SpecialAccount to be opened in a commercial bank which will be maintained by the CentralBank of Kenya. The authorized allocation to the Special Account will be US$ 1 million.The Special Account will be established, operated and maintained on terms andconditions satisfactory to IDA. Upon credit effectiveness the Authorized Allocation willbe withdrawn from the credit amount and deposited in the Special Account. The initialdeposit will be replenished on receipt by IDA of satisfactory documentary evidence ofeligible payments made from the Special Account for goods and services required for theproject. The sub-contracting of the pilot components for health and nutrition andcommunity grants to NGOs and the use of the Paymaster General (PMG) to pre-financeproject activities should considerably reduce Special Account transactions and simplify


project accounting requirements. Payments to NGOs below the threshold will bereimbursed directly from the main credit account after proper documentation andapproval.

4.19 Conditions for operating the Special Account will include the provision ofadvances to the PMG, to cover 90 days estimated operating requirements of the DEOsincluded in the project. For this purpose, the amount to be deposited in the SpecialAccount will include four months' estimated requirements of the Districts, to enable eachprevious three-monthly advance to be fully justified with each request for replenishmentof the Special Account, i.e. the advance outstanding (not justified) at any given time willnot exceed three months' requirements. The PMG account will be used for localexpenditures only. GOK shall make appropriate arrangements to ensure timely release ofthe funds.

F. ACCOUNTS AND AUDITS

4.20 The Project Coordinator in MOE will be responsible for the maintenance ofaccounts and records to reflect, in accordance with Kenyan and International AccountingStandards, all project income and expenditure and assets and liabilities. These accountswill include integrated cost and management accounts: (i) to reflect the financialperformance of each component and sub-component of the project to enable timely andappropriate decisions to be taken with regard thereto by NECDIC and DECDIC, and topermit comparison with annual budget provisions and project appraisal estimates; and (ii)to reflect utilization and availability of external funding by category of expenditure and inthe currency of the lending agreement. These accounts should be the subject of monthlyand quarterly financial performance reports and should be reconciled annually with theaudited financial statements of the project which should be produced within three monthsof the end of the period to which they relate. The first financial statements to beproduced and audited will relate to the period ended 30th June 1997. The establishmentof a satisfactory accounting system and supporting internal control structure is acondition of effectiveness.

4.21 Audits of the project accounts will be carried out, in accordance with Kenyan andInternational Standards on Auditing, by independent auditors acceptable to theAssociation. Terms of reference for the Audit are included in the PIM. Audit reports tobe transmitted to the Association within six months of the end of the period audited willinclude a reporting on weaknesses in accounting procedures and internal controlsrevealed as a result of the audit and recommending measures to overcome suchweaknesses.

4.22 Assurances were received at negotiations with respect to the following: (1) GOKwill maintain records and accounts in accordance with sound accounting practices, toreflect the operations, resources and all expenditures in respect of the project; (2) TheProject Coordinator would maintain detailed project accounts and a quarterly statement ofexpenditure would be provided to IDA; (3) Accounts and financial statements for each


fiscal year would be prepared and audited by independent auditors acceptable to IDA; (4)Statements of expenditure (SOEs) would be maintained in accordance with soundaccounting practices for at least one year after completion of the audit and a separateopinion on the eligibility of expenditures submitted through the SOEs and the SA beincluded in the audit; and (5) certified copies of the audited accounts and financialstatements for each fiscal year together with the auditor's report would be furnished toIDA as soon as available, but no later than six months after the end of each fiscal year.FY96 audit reports, required under the ongoing Universities Investment Project (Cr.2309-KE), - i.e., project account, statement of expenditures and special account - weredue on December 31, 1996, and are currently outstanding. Receipt of these reports is acondition of Board presentation.

Expected Benefits and Risks 30

5. EXPECTED BENEFITS AND RISKS

A. BENEFITS

5.1 The first few years of a child's life are crucial in the development of humancapital. Parents are the primary caregivers in early childhood. Improving parenting skillsand providing information, education and communication support have been shown inECD projects worldwide to be effective mechanisms for improving child developmentoutcomes. Successful IDA supported projects include the Tamil Nadu IntegratedNutrition Project and a number of ECD projects in Latin America, notably Colombia,Chile and Mexico. The quality of ECD programs is the other important determinant ofimpact on beneficiaries. Teacher training and support and parental involvement areimportant ingredients of high quality programs. Teacher-pupil ratios and learningmaterials also affect program quality. The project will significantly improve the qualityof ECD services in Kenya and improve access for the project groups.

5.2 At the end of the fifth year of the project 20,000 ECD centers would have beenimproved in terms of quality, and 5,000 new centers would have been established.Quality improvements are expected to benefit 1.2 million children. A total of 13,000teachers, 85% of whom are women, would have received additional training who areexpected to handle existing centers and new centers. In addition a total of 8,000 teacherswho had been previously trained by NACECE will receive refresher courses to improvetheir teaching methods. Through community grants, the project will specifically provideaccess to improved ECD centers to 200,000 children through grants.

5.3 By providing early childhood education/stimulation, nutrition and health inputs,the project is expected to generate the following benefits:

(a) Reduction in grade repetition and improvement in completion rates inprimary schools. These improvements in efficiency will translate intoeconomic benefits measured by fiscal savings on the part of thegovernment and financial savings for households. The government spendsUS$ 38 per year per child in primary schools while households spend US$17 for a total of US$ 55 per child per year (Kenya Poverty Assessment,1995).

(b) Incremental lifetime eamings of beneficiaries. Earnings differentials ofindividual earners by educational achievement are based on a nationalhousehold data (Welfare Monitoring Survey, 1994). Direct access by thepoorest 200,000 children to ECD through community grants will providelearning opportunities and therefore improve lifetime earnings. This willaccelerate the rate of human capital accumulation.

Expected Benefi ts and Risks 31

(c) Improved health/nutrition outcomes which translate into incrementallifetime earnings of beneficiaries.

(d) Incremental earnings for parents (especially mothers) as a result ofreleasing time for economic activities.

(e) Increase in schooling participation for young girls, who would be releasedfrom child-care chores.

(f) Incremental earnings for teachers trained in the program.

5.4 A benefit-cost analysis of the project gave an economic rate of return of 33%, anda net present value (NPV) estimated at US$ 94 million, making the investment highlydesirable from an economic standpoint. This calculation means that each IDA dollarspent for ECD translates into roughly US$ 5 of benefits in present values. Only benefits(a) and (b) were quantified indicating that these returns are conservative estimates of thereal economic benefits from the project. A complete description of the cost-benefitassumptions is given in Annex J.

B. IMPACT ON WOMEN

5.5 About half of those who will benefit from the improved ECD services are girls.The project will also ease the burden of child care on school age girls who are oftenforced to drop out of school to look after pre-school siblings. Data from the KenyaWelfare Monitoring Survey, 1994, showed that school enrollment for girls fell by halfwhen there was a pre-school child in the household. Increasing access to childcare forpoor households can have a far-reaching impact on opportunities for schooling for girls.Similarly, mothers' time will also be released for other activities.

5.6 More than 85% of ECD teachers are females. Thus, the continued employmentand participation in training activities of the 20,000 female teachers would be aparticularly important impact of the project.

C. ENVIRONMENTAL IMPACT

5.7 The project is rated "C". It would not have any adverse impact on theenvironment. The health and nutrition component will improve the health conditions ofthe children in the pre-school centers.

D. PROJECT RISKS

5.8 As an innovative pilot project testing the feasibility of mechanisms such as thetransfer of grants directly to communities, the project has substantial risk. Poorcommunity oversight resulting in community elite capturing project benefits or themisappropriation of funds is a risk. IDA involvement could result in the

Expected Benefits and Risks 32

bureaucratization of a flexible system for the provision of child development services.The tendency to see child care centers as pre-primary schools and parental pressure toteach the 3 R's could result in an extension downward of a rote learning system that doesnot serve the holistic developmental interests of young children. Further, the tendency toprescribe teacher certification and pay scales that ignore the realities of the market couldhurt the normal expansion of pre-school services. The project is intended to increase thetotal investment in young children in Kenya. There is a risk that the project will replaceor reduce other current sources of investment. To reduce these risks, the project willinvolve reputable NGOs with community development experience in Kenya to assist inthe implementation of the pilot components. It will promote a non-formal approach toearly child development and apply market principles in respect of teacher certificationand pay. Grants will be transferred to communities on a matching basis to encouragecontinued community contribution and there will be considerable investment in capacitybuilding for the major stakeholders - viz. parents of pre-school children.

5.9 Another risk is the possibility that investments in ECD will not result in theexpected improvements to the cohort of children entering primary school, and therebyreducing projected economic benefits. The impact of this risk on project outcomes wasassessed through a sensitivity analysis, and the conclusion is that even with the mostconservative assumptions on the projected reduction in dropouts and grade repetition atthe primary level, the NPV of the project would still be positive.

E. PROGRAM OBJECTIVE CATEGORY

5.10 The project falls under the Program Objective Category of poverty reduction andwould support a program of targeted interventions as part of the national program toredress the imbalance in economic opportunities, by investing in the human resources ofthe poorest households, and the most backward districts in terms of social sectorindicators such as malnutrition and poor access to health and education.

Agreements, Assurances and Recommendations 33

6. AGREEMENTS, ASSURANCES ANDRECOMMENDATIONS

6.1 Before negotiations, GOK provided the following:

(a) Draft Letter of Sector Policy (para 1.21).

(b) Draft Project Implementation Manual including draft Procurement Plan(para 4.3).

(c) Draft contract/MOU between GOK and NGOs for implementation of thepilot components (para 2.26).

(d) Draft Annual Work Plan and Budget, 1996-97 (para 4.2).

6.2 During negotiations, assurances were obtained that:

(a) The project would be implemented in accordance with the ProjectImplementation Manual and that any proposed changes to the Manualwould be subject to agreement by IDA (para 4.3).

(b) Adequate staffing of the PPE section, NACECE and DICECEs withsuitably qualified persons during the project period (para 2.22, 2.24).

(c) Submission of half yearly progress reports (para 4.2).

(d) Annually a joint review of the implementation plan would be completedby IDA and the Government; annual work plans and budgets will be sentto IDA for approval (para 4.2).

(e) the Government of Kenya and IDA will conduct a mid-term review ofproject implementation and impact (para 4.2).

(f) A Special Account would be established (para 4.18).

(g) Audits would be made by independent auditors acceptable to IDA and inaccordance with TOR satisfactory to IDA. Such audits would include aseparate opinion of the Statements of expenditure and a review ofsupporting procurement documentation with respect to the statements ofexpenditure (para 4.21, 4.22).

(h) Selected NGOs at the national level would be used for the implementationof the pilots, and that NGOs would be contracted as necessary for theimplementation of district plans. The Memorandum of Understanding tobe signed by the selected NGO and GOK will be approved by IDA (para2.26).

Agreements, Assurances and Recommendations 34

(i) Constitution of the ECD Implementation Committee whose compositionand TOR will be satisfactory to IDA (para 2.20).

6.3. The following are conditions for Board Presentation:

(a) Receipt of overdue audits for Universities Investment Project,Cr. 2309-KE, (para 4.22).

(b) Draft bidding documents for ICB and NCB procurement (para 4.5).

(c) Final Project Implementation Manual acceptable to IDA (para 4.3).

(d) Filling up of key positions in the pre-school unit of the MOE including theMonitoring and Evaluation Officer, Accountant and Supplies Officer aswell section heads of training, community and parenting education andresearch and evaluation in NACECE (paras. 2.21, 2.22).

(e) Establishment of the NECDIC (para. 2.20),

6.3 The following are conditions for Credit Effectiveness:

(a) GOK makes appropriate budgetary provisions for the first fiscal year.

(b) an adequate financial management and accounting system for the projecthas been established; and

(c) At least two NGOs have been selected in accordance with the criteriaspecified in the PIM and a memorandum of understanding signed betweenthe selected NGOs and GOK.

Annex APage I'of 71

REFPOLIC OF KENYA- - - MDNISTRY OF riINANCE

Telegraphic Addresg: 22921 Of fice of the Mini!sterFINANCE - XAIROsI P.O. Box 3PO07Telepi.one: 338111 NAIROBIWhen replying plea3e quote ' NYA

Rn. No. EA/FA 62/240/03/A 23rd Slay, 1996and data

Mr. Callisto adavao, IVice Presidert, Africa Region.World Bank1818IH Street, N.W.WASHINGTON .D.C. 20433U.S.A.

Dear tv I

EARLY CHILDHIOOD DEVELOPMENT PROJECTLETTER OF SECTORAL PQLICY

1. The Government of Kenya hereby s-ubmiits a request for a WcrldBank (1DA) Credit, to facilitate the implementation of an EaIrlyChildhood Developr.ert (ECD) Project. The paragraphs follo ingexpouna on che policy framewo:k agains_ which the ECD Project, isconce zved . -

GENERSOL POLICY 51RAMEWORIK

2. The Government regards education as an ind-ispensable tool if ori mDrcvn-.g human resource development to enabl e it to meet m'oreeasily the development challenge whi.ch in- its broadest sense is kbeim=rcvement of the quality of life. The National Development PUanemphasizes strategies such as linkinc ed-acation and training at a1llevels with natioral development and offering education tpatprovides necessary skills to promota higher human productivity;ensuring efficienoy, relevance and cos_ effectiveness in natio6alhuman resource development and training efforts; assuring over41training needs in varicus sectors of the economy; providing eualopportunities for education to every Kenyan, etc. as effec& vetools for meeting the challenge of development. Our human resourceinclude the youth who in Kenya, comprise about half of thepopulai.-c.onr, and abcu: one thl rd of th_s population, is childrenunder six years of ace. Their educaticn, care and developmentl isprovided through the early childhood care and education programme.Since the sa;xth National Development Plan period (1989-'1993), theEarly Childhood Development concept was expanded to incorporkte

1/2

. Annex APage 2 of 7,

chi ldren unAe -three years of age an" foc-us on such aspect astheir healthn, n.u-ritior and care. * S

3. The Seventh National Development Plan (l199-.996) seeksprovisior cf sUstanred Zarlye Cnildhood Develcpment, incrensedaccess to Early CHildhood Developmenz for all children ndex=ansion of training fcr reszective personnei and ozher skiIllsrelated to Ear6ly Childhood Development ac: P-v ::es.

Early Childhood Care and Education Policy I

4. Tke Mi-nistry of Edcation (MOE) assumed the responsibility ofcoordinating early childhood development in 1990. The Ministry ischarged with the responsibility of the registra-ion; supervision,tra4ning, staffing, curriculum developmenc and th-he formulaticn ofpolicy guideline for Early Childhood De-,elcpmnent.

5. The po2.'cy oI the suh-sector has evolved over the last decade.Important aspoects of the colicy are articulated in the sesiaioAalPaper NO.6 of 19&6 and Naticnal Development Pla-ns (1989/93,1994/1996) . The Government undtrsccres the importance iofpartnership which facilitates coordination between parenls,communrities, non-gover m.ental organizat'ons (NGO) and bilateraldonors in the implement_:icn of the ear'v childhocd developmintprogramme. T-he policy also emnpha.zes the need to provildeintegrated services thaz meet t-e social, e=otional, cognitiVQe,health, nutrition, care and prctect-o.n needs of children. thesover-memt -ntends to s;pport ccmmunities and families acqnilrerelevant infornaticrn and skillls as wel1 as develon self-reliance Itobe able co Prc/v-de a scund foundation for their ch.ildren during theearlv years. The ourer=:h to the family is necessary given thatth-e family is the -rirme care-giver and educator and the majcrity ofch±ldren have no aZcess to insticu'tionaiized basic care ahdeducation. This approac-. takces cognisance of .he ch.a:ges in the'am ly struc-ture due to monetiza-zon of the econo;my and thei.ncreased parzicipati^r. of- women :n the labo-r force.

6. In recog:n' tion of the recommendations of the th-ree Worldforums namely: the Convention or. the Rights of the Chi-'ld (198a9,World Summit for Children (1990,), and the World Cornereace onEducatior. For All (EFA) (1990), the Kenya Government has increasedthe integrated approach whi.ch allows the participation of a widerspectrum of service prcvi-ders -

7. The current objective of the government is to strengthen thefamily in ch, id care, .mDrcve the Early CIaildhood Developmentcentres, improve their cuality and expand ac-ess particularly tochildren of disadvantaged households azd margina ized ccm^nmunitiei.

8. There has been a rern-kable expansion of the early childhoodcare and edzcatlon centres since the ir-ception of the programme nearly 1980s. The nun::Ler of pre-school cen-res reached 20C86 n

... Al

- - Annex A|Page 3 of 7,

1995 and the enrcment doubled from 485,000 childreI in 19821tonearly one thIllnor. in 1995. Near7y 802Q of these cer.tres areorganized and managed by parents' associations, and the rest iresponsored by religious organizati:ns, local authorities, NGOs andthe private sectcr. however, more than two thirds of childfenbetween aces 3-E years do not have access to these services, andpoorer househol-ds are less likely than others to benefit fromexisting serv-ces.

9. The .level of gcvernment budgetary allocation fcr pre-sch?oleducation i s re7a`vely low i.e. less than one per cent of theMinistry of Education budget. The bulk of investments in BCD areborne by parents w1hose budgets are increasingly being sqeezedlbycom- eting household expenditures. The gcvernment and donors (suchas Ber-nard Van Leer Foundacion, UNICEF and the Aga Khan Foumdation)provide support for care-giver/teacher training, curriculum andmaterials developmenz, community mobilization and moniObrinc. Thelow level of overall public and household funding fcr this s9b-sector has resulted -n (1) low access to ehe ECD serv±cgs,particulaily for the lowest income gTrouo (2) wide variations in dhequality of physical. facilities, teacher/care-=ivers, and servidesand (3) in,adequate monr-_oring and sipervision.,

'.Q. The pr_sen' "-D programme is admin-stered :hrcuh threesections of the Ministrv cf Education.These are: (1) the pre-sc:e. olsection of the DIrectorate 0o Education whi crh hand)esLdm nistrat-ve mat:e.s relazed to rea4 israt.on -pre--schdolcen.t-es, coordinatic- w--: dcnors and NGOs, policy guicelines, andinter-sectoral liaison pert;anirng to childrer's protec:io=, ca.ge,health ancd .u:r-tion-; (2) the National Centre for Ea-ly ChildhdodEducazio~ (NACECE% at the Kenya I1rslitute of- -uuation wh-ch|isresponsible f-r tra:n4nc o, care-sivers ancd teache-rs and develop'ngofJ curriculum; and (3' : ore -reschccl section of the inspecroratedepartment which is rsszonsible for the miaintenance and mronizorIlngof star-dards ^f the programme. I

:1. In order to ilnczease partic-zaticr of various partners at thegrassroots leve'., MOE cec-ntralized the programme by establish4ngthe District Centres fcr Early ChU'ldhood Education (DICECE) . Thqseare responsible for training of pre-school teachers, developinglocalized curricul um, mcb:I lizing parentE, comrmun,4 ties and sp,onsors.Cutrrently, :he governmens has established DICECE in, 57 Dis:riqtsof the Republoic.

SUB-SECTOR POLICY REFORM1

:2. A central cbjecm've of Gcvernnent. policy is to strengthen Jhepresent early childhcod centres, improve their cuality, and exp ndaccess to th-^se seorments of socie:y cur_ently un,able to have ea lychildhood devej.cnmen: services. Tc achnieve th-'s cbjective, hegovernment wUi.J.. :se i's mnac.hinery tc increase t1he availability ofECD serv4ces, wih _pi^ri.ty Cc to ose chil.dren from disadvantaced

.- 1/4

Annex APage 4 of 7

households, in slums and marginal areas of the country. - IThedevelopment 6f 'arly Childhood Development rests in large mea lureon policies designed to improve the efficiency and equity in ttheallocation and use of the programme resources as well as! on.policies des igned to ensure , sustainability. The sub-secdtorpolicies to be implem,6nted within the pz`oject time shall inclludethe followino:- I

Increased budgetary allocation

Ex-ansion and harmon4izaticn of the training programs torteachers/care-givers and trainers

Strergthening the capacity cf school committees ito

provide quality programmes

Improve access of EC= services to the poor

Strengther,ng the management of the ECD programs from the

DICVCE to the Na-ional level

Developi-sg guidelines for l-nkaTe between pre-schoollto

primary sch-ol I

Provide su-oort to the family, particularly in the careof chl-dren under three years

Defizinticr cf an ECD Centre within the broadened concept

of E'CD

r e-veic-ment of guidelines _or basic services for p e-

schools

G:Guidance on t:e terms and conditions of service for ECDteacher s and other personncl

De' ritinc of the rc' e of other partnera

Budgetary Allocation

12.1 Annual Budgetary allocations for the various sub-sectors ofthe Ministry are progressively undergoing adjustments, with a vlewto reduce governme=t fiInancial commitment to tertiary institutionsand increase allccaticns to pre-primary, primary and secondary

education. This policy will ensure that budgetary allocation for

Early Childhocd Development will be at the level tha: can sustainprogrammes to be initiated under the proposed IDA Credit upon itsexpiry. Budgerary allocation for ECD in the MOE budget would e

increased to az least 1.O. of the recurrent MOE budget at expiry ofthe IDA Credit. The IXA funded ECD project will be refl ected nche Public Inve-sz:,an- Programme for 1995/96-:9S7/98 and shall be

. .~~~~~~~~~~~~~~~~~~~~~1

Annex AlPage 5 of 7

categorized as a "core project" within the MOE budgetary allocarionpriorities. -

Training of Pre-School Teachers and Care-givers I

12.2 Training o, pre-schoC7 teachers shall remain the mainresponsibility of N-ACCE and, at the dis:rict level,will beimplemented through the DICECEs. The governme=t will subEidize thetraining of tieachers. The cost-sharing policv of the training ofpre-school teachers shall continue. The ful' cost of trainlingshall be c1narqed to thzse L ndividuais who are able to pay. A1ltrainir-g roamr;s sr.a2 be conducted in existinmg tra4in'ngfacilities, such as the Primary Teacher Training Colleg sseconda-ry schools arn- cther government instimutions in order tomaximize use of the present tra-Iring cerntres.

Building the capacity of Pre-School Conmlttees R

12.3 com,municy management capaci=y is key to ensuringsustainabil.-ty and a;;ality of Barly Childhood Development centres.The capacity of Pre-school parents' committees with a st Icturedmanagement ccmnprising of a chairperson, secretary and treasurershall be enhanced through training. :n the case of Early Childh6odDevelcrment cenzres attached to ririary schcols, skills trainingwill bce provided to lre-schocl commic:ees zhro-:gh the head ceacher.The primary School com..ittee mus' however be the representat_ionl ofthe vre-sch-oc: teachers and pare.nts. in urlinked schco s, otAerfaciliJties wi-1l be idertified for this ro'e-

Ymproving Access to the Poor

12.4 Suppor gran- s sha1: be provided to Early Chiildhdod;Deve'opmen.t centtes i- t2rae-ec. districts based on a set of defr+edcriteria, including pcverty, health and educaticn indicators dndecu_ty considerations. Criteria for recaipt of suDrot grants willideoend on deronstrated ability to generate w:haever funds Lndresources thrcugh school fees or othe:- ccn:ribtions. C-ran:s whilchwill be made available to these commi ttees could be used zowaNdsthe imprcverient of the Early Childhood Development centre,includinc salary of teachers, care-givers, health and nu:rit'lonservices, ar.c imprcoverent of facilities and materials.

Strengthening in DICECE

12.5 DICECE will be strengthened to enable them (a) to meet the irtraining respon.sibilities and (b) to man-age ot0her Early f:hildho odDevelopment project cotn-onents such as community capacity buildipgand mobilizatior, health and nutrition and community suppoirgrants. Each DICECE w:ll have a minimum of 6 trainers includingspecial pilo activity coordinators as necessary. The DICECE wi4lal.so receive other ir.:ras: uctu-a' support.

Annex AiPagc6of 71

Coordination at Central Level

12.6 The p-Ojict Will receive ove"all policy and stratjgicdirectior from an inter-sectoral National Earlv Child dodDevelonment imple-.entacicn CoTmittee (N-=CIC) chaired -by thePerimanenC 4ecretary, Ministry of Education. A,n inter-sectoralDistrict -ar2.y Ch4ldhocd Development Implementation Committee(DECIDC) w-il be conscituted aLt the district level with pheDistrict Education off'icer as the chairman. The pre-primeLryeducation section in the Mn.istry will be strenathened and the Headwill be nared Project Coordinator. The project coordinator will(a) be Secrerary o£f the N-CDIC; (bl facilitate project cocrdinat}onimplementation and monitoring prcject progress; and (c) handle Fheproject's ad-ninristrative reauiremencs.

Policy on the Under 3-year Old Children

12.7 The first tAree years of life is a crucial phase in Ahephysical, social and .ental development of the child. At present,a number cf children in this age group are atzending EazlyChildhcod velopment centres especially in poor urban areas a d unPlantations where :ne :raditiion.al family support sys:es are nlotavailable. Strate=ies for develop'' in alternative models for thevery young children ard enhancIng parenting skills for this agegroup will be devaloped. I

Teaching Philosophy in Lower Primary School

12.8 Th-e transiticn from pre-primary sc'hool tc pri;mary schoolis made diff-cult fLcr vcung children due to vast differences inteaching cur-iculum and methodologies. Linkages need to beestablis.:ed becween p:e-schocls and the lower primary classesP_rimary school2 teachers need to be suppcrzed with orien:ation andappropriate ;materials to rmnake the firs years ir. the primary schoolfriendly for the ne;,,r mn:srans.

Defining the role of other partners.

12.9 T'-e MOE wi li cooperate with the Ministry of Eealth,Mi:iistry of C-ulture and Social Servlces; Local authorities a Iother relevant par:ners within the Go0 in the implementation ofEarl.y Childhood Developnenk"_ services. The MOE will strenathen on-going partnerships with donors such as Biernard van LIeer, Aga KhdnFoundatincn and UNICEF and exn ore new part;nerships. NC-Os will beinvited to participace i.n the project and contracted to ass_'st inthe piloting of innovative models such. as comrnunity grants anlhealth aind nutriJi.on services via 'CD centres and assist i6nmobilizing other resources for Early Childhood Development i KenyzC. L.

CONCLUS ION

Pa7of

13. The Policy implementation anid institutional support describedabove will eahince the continuous adaptation and effectivenesslofthe Early Childhood Development programs.

14. Finally, -1 take this opportunity to thank the-World Bank, forits continued cooperation and support extended to the ie4yaGovernment.

Ycurs

EON. MS

Annex BPage I of 4

TEACHER PERFORMANCE IMPROVEMENT & TRAINING COMPONENT

Background and Objectives

1. This component is intended to equip: (a) ECE teachers with appropriate servicedelivery skills and (b) project staff to manage the ECE program. The specific objectivesof the component are to train:

(a) 13,000 previously-untrained ECE teachers in an existing two year in-service course, which the project would upgrade

(b) 8,550 previously-untrained teachers in a five-week Orientation Courseduring the first three years of the project

(c) 50 teachers a year in each DICECE in two-week specialized courses

(d) head-teachers, zonal school inspectors, local authority and other staff in aone-month

(e) supervisory skills course.

(f) 250 DICECE staff on community mobilization, communication skills andother specialized short courses

(g) 250 DICECE staff in an existing 9-month training of trainers (TOT)course

(h) 30 NACECE and Ministry of Education staff in management, communitymobilization and communication and writing skills through short and longterm courses internally and externally, advanced degree training andorientation programs for new staff.

Program Content

ECEC Teacher Training

2. Training Strategy and Approach. The basic and alternative ECEC teachertraining courses will be conducted in 6 three-week sessions during school holidays overtwo years. Training will be offered to 13,000 teachers over the project implementationperiod. The two-year courses will take place in the 26 districts with DICECE facilitiesfor residential training. The training teams would consist of a combination of DICECEstaff and external facilitators.

3. During the first project year, NACECE will implement a five week Orientationcourse for untrained ECEC teachers. The purpose of this five-week course is to ensurethat within the first three years of the project, all untrained ECEC teachers get some basicknowledge while they await formal training. The Government also will decide whetherto shorten the two-year basic and alternative courses to reflect skills imparted during thefive-week orientation course.

Annex BPage 2 of 4

4. Curricula and Training Materials Development. NACECE panels wouldreview current curricula for ECEC teacher training to correct identified weaknesses.Curriculum revisions could include more effective approaches to caring/talking tochildren, resource management skills, adult learning, basic reading and writing skills,communication, young child health and nutrition and community mobilization. Thepanels also would review training support materials. Modification or development oftraining support materials would be done at NACECE, perhaps by contracting withspecialized outside groups.

5. New curricula and training support materials which would be developed ormodified include:

(a) Revised curriculum for the two year and five week courses

(b) Revised TOT curricula

(c) A manual for pre-school teachers (to include in addition skills such ashealth and nutrition, parental education, working with school heads,linkages with primary schools, self confidence and self reliance skills)

(d) A manual for trainers

(e) Guidelines for training of supervisors

6. Training Output. The 26 fully-fledged DICECEs will continue to conduct theregular and alternative ECEC teacher training courses, which currently take two years tocomplete. Most of the fully-fledged DICECEs now have a training staff of 3 to 4, buttake more staff from the other DICECEs and external facilitators during training asnecessary. Each fully fledged DICECE can accommodate 100 ECEC teachers at any onetime in the regular course, resulting in a total output of 2,600 teachers a year. Assumingthat 2,000 ECEC teachers are currently in training and will graduate in year one of theproject, 13,000 ECEC teachers could be trained through the regular course over the five-year project period.

7. The alternative course uses the same curriculum as the regular course, but setsdifferent examinations. It is intended for teachers who are below fourth form and comefrom hardship areas such as ASAL and for some traditional Maalim and Duksi teachersof the Islamic Integrated Curriculum. If the alternative course continues to be offered ineach of ten DICECEs for a single batch of 50 teachers, a total of 1,500 teachers of the13,000 teachers could be trained in the alternative course during the five-year projectperiod.

8. The five week orientation course for untrained teachers while they wait to betaken to full training courses will consist of 5 modules covering: (1) child development;(2) health and nutrition; (3) pre-school activities; (4) parental involvement/education; and(5) professional development. DICECEs will have flexibility to schedule the orientationtraining to suit local circumstances. It is estimated that each DICECE will train 50teachers every year through this course during the first three years of the project for atotal of 8550.

Annex BPage 3 of 4

9. The supervisory skills course would be part of a process of institutionalizingresponsibility for technical supervision of pre-school teachers at the zonal or local levelthrough zonal school inspectors (ZSIs) or primary school head masters.

10. As part of the process of strengthening community mobilization (SeeCommentary Mobilization Component), the project would train at least one existingCommunity Development Officer in each district. By strengthening their communitymobilization and communications skills, the project would develop an additional resourceto assist communities in the process of managing and sustaining their ECECs moreeffectively.

Training Venues

11. DICECE will continue to carry out the residential component of the teachers' twoyear in-service course in existing institutions. The MOE will formulate a policy onrationalization of payments for residential ECEC teacher training whereby institutionswill be required to keep venue charges constant for reasonable periods and to use ratessimilar to those for training equivalent cadres (e.g. primary school teachers).

Training of DICECE Staff

12. DICECEs will need additional staff and training to meet the aboveresponsibilities. DICECE personnel needs are described in Annex F. DICECE staff willrequire two types of training. Existing staff will need short courses in management,communication, community mobilization skills and, in divisions where the componentwill take place, on Health and Nutrition. New DICECE staff will need several kinds oftraining including an induction course and orientation programs. NACECE will carry outthe nine-month induction course for the 250 additional DICECE staff expected to berecruited during the five years of project implementation. Induction training will be atthe rate of 50 DICECE trainers per year. Some DICECE staff will also need higherdegree training locally or abroad. The DICECEs also will offer slots in training programssuch as orientation courses on early childhood development and community mobilizationskills to other officials in the district such as Community Development Officers and staffconcerned with financial management. Training curricula and materials would bereviewed, developed and pre-tested as needed.

13. Training needs for current and new staff at a typical DICECE and the first year'sDICECE-level curriculum development and training schedule are in the ProjectImplementation Plan.

14. Short courses need to be developed or identified locally and abroad through whichDICECE staff can get training. This would include training on management, computerskills, specified content of ECD. If an average of two persons from each DICECE aretargeted for training each year, 500 DICECE staff would need to be reached over theproject period.

Annex BPage 4 of 4

NACECE Staff Training

15. Both existing and new NACECE staff and MOE personnel involved in earlychildhood development will also require training. By Negotiations, NACECE woulddevelop a five-year staff development plan to guide that training effort. New NACECEstaff will receive an internally-organized orientation program of one month. Both newand experienced NACECE staff and MOE personnel could take part in short courses ofup to six months' duration at home or abroad.

Staffing And Management

16. For the training program to be fully operational, some existing staff positions needto be filled and new ones created and filled. A fully operational DICECE requires aProgram Officer (PO) in charge of the institution, six trainers, an accounts clerk, andsupport staff. In order to take community mobilization on a full time basis an additionalperson (Community Mobilization Officer) will also be required. In some of the DICECEthat will not have enough numbers of teachers to train over five years, the full capacitywill be developed in due course. It also would develop a resource center to provide staffand other interested professionals and communities with reference materials and up-to-date information on best practices and developments in early childhood education.

17. Current staffing levels at each DICECE and approved levels are shown in theproject implementation plan. It is envisaged that the approved positions will be filledwithin the five year period bring the program to a full operational level.

18. NACECE will manage the training program on behalf of overall projectmanagement. The professional staff required for the purpose and job descriptions areincluded in the project implementation plan.

Monitoring and Evaluation

19. The training component will be monitored both at the district and national levels.At the district level, DICECE staff will oversee the day to day running of the programwhile NACECE staff will assist on regular basis. Monitoring instruments will includereports, surveys, and visits. An external evaluation will need to be conducted half waythrough the project.

20. Initiatives to Explore:

(a) Pre-service training

(b) Distance Education through radio and TV

(c) Regional and Zonal pre-school teacher groups

(d) Home-Based care-giver training.

Annex CPage 1 of3

COMMUNITY CAPACITY BUILDING AND MOBILIZATION

Background And Objectives

1. More than 80% of the 20,000 ECD centers in Kenya are owned and managed bycommunities. These communities have developed ECD centers according to theperceived needs, and have been responsible for the development of physical structures,payment of teacher salaries and training, contributions to playschool materials, schoolmeals. Communities are also responsible for the management of the center.

2. Given these responsibilities, community capacity building becomes extremelyimportant for the delivery of quality ECD services. The success of the project is largelydependent on how much would be achieved in mobilizing communities and building theircapacity to manage pre-schools. For long term sustainability, communities need to havenecessary skills, knowledge and decision-making capacity to manage, operate, superviseand finance their ECD initiatives.

3. The objectives of this component are to:

(a) Sensitize communities on the importance and benefits of early childhooddevelopment

(b) Train key community leaders and managers of ECD centers (including thepreschool committees) to improve their capacity to manage pre-schools.

(c) To mobilize communities and increase participation in ECD activitiesthrough an IEC campaign.

Description

(a) Coverage

4. While general community mobilization activities will be implemented all over thecountry, community ECD management capacity building will be implementedexclusively in the pilot districts. On average, there are 15 zones per district, and 30 pre-schools per zone. Priority will be placed on communities that are chosen to implementthe project components for health and nutrition management and community grantschemes.

(b) Orientation

5. In order to succeed in implementing activities for community mobilization, it ispertinent to obtain support for ECD and pre-school education from agencies involved inproviding support to ECD. NACECE would conduct a one day orientation in Nairobi forofficials and NGOs at the national level. Similarly a one day orientation session will beconducted at the provincial level to sensitize DEOs and DDOs from the districts with an

Annex CPage 2 of 3

aim towards building team support for pre-school education through the DDCs andDEBs. Subsequently, NACECE and DICECE would sensitize other district officials suchas the DIS (district inspectors of schools), DSDO, CDA, MOH, and MEO at the districtsin two day orientation sessions. In addition, DICECE --with cooperation from Ministryof Culture and Social Services, DDC, and DEB -- would also sensitize and train thedivisional and zonal officials such as TAC tutors, the PSI, ZSI, AEO, and head masters(HM) of primary schools, as well as the NGOs. This training would be held at the districtand divisional levels for 3 days for a group of 20 people or four per zone.

(c) Community Mobilization

6. Participatory Development Approaches. The Community Mobilization Officer(CMO) of DICECE and a ZIS (Zonal Inspectors of Schools) or HM would form atraining team both at the divisional and zonal levels. The teams would use ParticipatoryDevelopment Approaches (PDA) workshops at the zonal level for a total of 60representatives from about 4 communities for three days. The participants would becommunity chiefs, ECD management committee members, PTA members, pre-schoolteachers, and religious leaders. The PDA workshops would introduce the concept of agood ECD program, and would include a needs assessment, evaluation of on-goingactivities, and exchange of information related to ECD amongst the communities. Theworkshop would also includes a visit to a demonstration ECD center or a communityresource center and some on-site practical exercises. At the end of the workshop, traineeswould be asked to produce a plan of action for their communities for improving theirECD centers. The training team would review the plan and give appropriate advice onthe feasibility of the plan.

7. Management Training. One of the major problems identified in theadministration of ECD centers is that the communities often lack adequate managementskills. Therefore, NACECE and DICECE would develop a standard training package toenable key community members to improve the management of existing ECD centers.The standard package would include, inter alia, the following subject areas: groupdynamics, administration, book keeping, preventive health, nutrition, growth monitoringand promotion, inventory control, and annual planning.

8. Training for Parents and Caregivers. Parents and caregivers play a key role inthe growth and development of the children. A program that focuses on children musttherefore also address itself to the parents and caregivers with a view to building theircapacity so that they are able to provide quality care for the young children. Here,caregivers includes mothers, "ayahs', grandparents, and other adult childminders. Thetraining team for this component consists of DICECE and divisional and zonal staff whohave received the orientation training. A five-day training would be designed andconducted for about 20 parents and caregivers at the community which will includesubjects such as: child growth and development, health and sanitation, nutrition andproper diet, responsible parenthood, stimulation and children's learning ability,importance of play and space, care for children with special needs, and management of

Annex CPage 3 of 3

family resources. A participatory approach will be used in order to facilitate sharing ofideas and experiences. Activities such as development of toys and other learningmaterials, collection of folk media, food production and preparation demonstrations, andvisits to relevant institutions will also be included.

9. Community Mobilization Activities. It must be understood that the mainmobilizers of the communities have been and will continue to be the communitymembers themselves. Harambee meetings, Barazas, women's group meetings, PTAmeetings, school committee meetings etc., are important venues for communitymobilization activities. The project will increase the frequency and quality of existingefforts to mobilize communities for ECD.

(d) Information, Education, and Communication (IEC)

10. An IEC strategy will be developed and implemented with the objective ofincreasing participation of the communities in ECD. Useful and easy to understandmessages would be developed on benefits of pre-school centers and health education andfeeding programs for young children. Various media would be used such as radio andTV programs, posters, and pamphlets. Local such as the folk media could also befacilitated by the district and zonal officials led by DICECE. This includes puppetshows, children's plays, demonstration of games, and exhibition of children's art work atfestivals, agricultural shows, and other fares. Through these events and the folk media,different communities could have a forum to exchange information on ECD and establishlinkages amongst each other. The target is for the district, divisional, and zonal membersto facilitate these types of events at least twice a year at the district and divisional levels.Annual picture contests could also be organized by NACECE for the pre-school childrenthat would start from the zonal level and conclude at the national level.

11. Through these IEC activities, communities with ECD centers would most likelybe able to obtain useful and important information to enhance their ability in managingtheir centers. However, it is envisioned that communities which do not have ECD centerswould also be stimulated, motivated and indirectly mobilized to start their owneducational program for pre-school children.

Annex DPage 1 of 8

HEALTH & NUTRITION PILOT

A. Summary and Introduction

1. The health and nutrition component would develop, test and refine a replicablemodel emphasizing prevention and promotion to optimize health and nutrition standardsof pre-school children at the community level. The component would initially focus ontwo target groups: >3s who attend ECECs, and children 1-3 years of age who constitutethe next generation of ECEC beneficiaries. The principal interventions would beimproved caring practices and community-based health and nutrition services. Collateralattention would go to improving growth patterns of children <1 year of age throughpromotion of better maternal breastfeeding and weaning practices.

2. It is expected that families would improve their caring practices sufficiently overthe first few years of implementation for attention then to shift to older children in earlyprimary school, for whom other forms of service delivery would be needed.

3. The rationale for initially centering on children >1 year of age is: (a) growthfaltering tends to appear late in the first year of life, gain momentum and result in growthfailure and stunting of children at around 2 years of age, only some of which issubsequently remediable; (b) children <1 year of age have three formally scheduledcontacts with the health system through KEPI, but none thereafter, and (c) children <1year of age are generally under close family supervision which may be increasinglydiffuse thereafter as other caregivers enter the picture.

4. The component would address the five major problems common to preschoolchildren throughout Kenya as well as two which are important in specific geographicareas. The core interventions would be directed at: (i) growth failure mainly throughfaulty feeding practices; (ii) diarrhea; (iii) acute respiratory infections (ARI); (iv) worms;and (v) Vitamin A deficiencies. On a geographic basis, interventions also would includemalaria and schistosomiasis control.

5. Interventions would have to be provided in the community because the distancesinvolved preclude obtaining them at other levels of service delivery.

6. The operational unit of organization would be the division, which has around 100pre-schools on average. The component would be implemented in 5 incrementaldivisions per year, reaching a total of 2,500 ECECs. There would be a spread to coverdifferent ecological parts of Kenya and at least one division within each ecological zonewhere child nutrition and health conditions are considered most precarious.

7. Highest priority would go to divisions in districts with higher than averagestunting rates and lower than average ECEC coverage. Implementation for the first yearmight take place in five districts where welfare monitoring data indicate that childstunting averages over 40%: Homa Bay, Kakamega, Kilifi, Kitui and West Pokot.

Annex DPage 2 of 8

B. Background

8. Community-based interventions against each of the key problems of preschool

children, their feasibility and likely effectiveness is as follows:

Table 1

Problem Intervention Feasibility At EffectivenessCommunity Level

Growth faltering/ growth promotion through weighing, high fairly highfailure counseling

short-term nutrition supplementation variable variable

Diarrhea counseling on home management, high moderate/highreferral

Acute respiratory early identification, referral high moderateinfections (ARI)Vitamin A semi-annual megadose high highdeficiency

Wormns periodic mass deworming high highsanitation education high low/moderate

Malaria promotion of impregnated bed nets or moderate fair/moderateother home vector control,presumptive treatment, referral

Schistosomiasis Annual prophylaxis high highFe/folate deficiency Daily supplementation Deworming Uncertain high fair/moderate

9. The interventions would emphasize promotion and prevention rather than cure.

They would aim at improving family caring practices, since it is recognized that lack of

parental knowledge and poor feeding, weaning and child care are among the principal

causes of malnutrition except in those relatively few cases where poverty is the

overwhelmingly binding constraint. Among the interventions to be promoted would be

community or family provision of a mid-day snack to ECEC children and improved

environmental sanitation (e.g. communities could use grants under that component of the

project to build latrines).

10. Interventions against the first five problems and malaria need to be available at

least monthly (assuming Vitamin A delivery on demand as children need it rather than on

fixed semiannual dates). Both deworming and schistosomiasis prophylaxis can be

provided on a campaign basis. A Community Health Fund will be created to meet special

needs.

Delivery Options

11. The two available mechanisms potentially capable of delivering these services at

the community level on a fully operational scale are the Ministry of Health (MOH) and

Annex DPage 3 of 8

non-government organizations (NGOs). The for-profit health sector even at village levelhas found little money-making opportunity in promotional and preventive care.

12. MOH. Except for immunization, maternal child health (MCH) services toyounger preschool children through the MOH are currently limited in scope and scale andavailable on an irregular basis. In fact, rising child mortality 1988-93 in the face of risingimmunization rates indicates that overall MCH services may be declining in quality andcoverage. However, one option is to try to strengthen and expand MCH services toprovide the full range of survival and development services to preschool children. Thiscould be done in one or a combination of three ways.

13. One strategy is to strengthen the availability of services at existing health facilitiesto generate more consumer demand. A second is to get MOH workers to visit ECECsroutinely and frequently and also attend to the first-level health needs of the entirecommunity cohort of preschool children >1 year of age and their parents. Governmentdevelopment of a version of the Bamako initiative is a third. The Bamako approachinvolves community selection of a volunteer health worker who receives some training,in health promotion and first aid, a basic drug supply and gets to keep the profits fromdrug sales to the community.

14. Neither of the first two strategies above appears appropriate for inclusion in theproposed project. Evidence to date indicates that the opportunity cost of beneficiarytravel to MOH facilities outweighs perceived benefits of promotional and preventiveMCH interventions, including nutrition counseling and detection of sub-acute infections.Moreover, uneven response at fixed facilities has reduced consumer confidence in publichealth services at the periphery.

15. Getting MOH personnel to visit communities often enough and, when there, tospend the time needed for effective MCH promotional and preventive activities also hasproven difficult. Combining community MCH work with a school or ECEC visit hasgenerally not been cost-effective elsewhere and does not seem to have received Kenyapriority.

16. On balance, it appears likely that successful delivery of a community outreachprogram targeted on mothers and pre-school children by present MOH personnel wouldrequire a fairly substantial reorientation of the public health system in the geographicareas to be covered.

17. The Government has accepted the main principles of the Bamako initiative as partof national health policy. Some limited MOH experiments with Bamako-type programshave taken place. The results are reported to be generally positive. However, the MOHhas yet to develop a national strategy and program for widespread expansion of thevillage-based approach. Whether under its present staffing configuration and operationalstyle the MOH could successfully implement a Bamako-type program on an operationalscale also remains to be determined. Moreover, the Bamako initiative focuses on the

Annex DPage 4 of 8

more general health needs of the community as a whole rather than the specificrequirements of pre-school children.

18. Non-Government Organizations (NGOs). A number of NGOs have developedand implemented paradigms for community-based health delivery which have includedone or more parts of the service package described above. Several have also putvariations on the Bamako initiative in place both before and after its promulgation. Mostof these efforts also have been relatively small-scale and somewhat limited in scope.However, they offer positive lessons particularly in areas of training and supervision.

C. Detailed Component Description

19. With the above experiences and resources in mind, the component would test atleast one of the following three delivery modes in villages where the ECEC has stabilizedand an active pre-school committee (PSC) is in operation:

(a) GOK model - Pre-school committees selects community child health(CCH) aide. Health department at district/division level trains CH aide(CCA) and CHW provides technical supervision on monthly basis for firstsix months and as infrequently as quarterly thereafter depending onindividual performance. MOH supplies scales, growth charts, Vitamin Acapsules, deworming medication and communications materials.

(b) NGO Model - Pre-school committees select CHW. Project contracts withNGO such as AMREF which has experience in community health trainingto train and supervise CCHA and provide logistical and material support.

20. In each case, the division (around 100 ECECs) would be the unit of serviceorganization. Table 2 outlines the basic intervention delivery framework and itsrelationship to problems, process and impact objectives and their indicators.

Work Routines, Supervision and Training

21. Based on experience elsewhere, it is expected that for a population of around1,000 persons the GMPA would need to allocate around 53 hours per month to carry outthe interventions in Table 2. Based on a population of 1,000, with around a 32 per 1,000birth rate, initially there would be around 60 children aged 1-3 years of age and around 90aged 3-6 years. (Estimated pre-school population growth of around 16% during theproject period has been excluded from these initial calculations.)

GMP - monthly weighing of children 1-3 years, plotting weight on growth chart andcounseling mother: 10 minutes per child, or 10 hours per month. Counseling ofpregnant women in last trimester/new mothers on lactation management, 10 contactsof 15 minutes' duration with groups and individual women, around three hours permonth. Quarterly weighing of children 3-6 years, plotting weights and counselingmother @ 10 minutes per child, avenge of around five hours per month.

Annex DPage 5 of 8

* Diarrhea management - two 30-minute meetings with four groups of mothers ofchildren <3 years of age monthly, or four hours per month.

• ARI - one hour baraza for general parent education and eight 15-minute contacts withindividual mothers, around three hours per month.

* Skin Infections - two half-hour talks to groups of mothers, plus average of 12 scabiescases monthly for benzyl benzoate administration at 10 minutes each with individualcounseling, around three hours per month.

* Vitamin A - Semiannual mass dosing of 1-3 year olds, 10 per month at six minuteseach, around one hour per month.

* Worms - Semiannual mass dosing preceded by 30-minute talk to two groups ofparents of 3-6 year old children at ECEC, three hours every six months, or 30 minutesper month.

Malaria - Two 30-minute monthly meetings with groups of parents on malariaprevention, recognition and control, around one hour per month.

- Schistosomiasis - Annual 30-minute meeting with four groups of parents to preparefor MOH administration of praziquantel, or around 10 minutes per month.

• Social marketing, spot counseling - Neighborhood visits to hand out materials,informal doorstep counseling, etc. 30 minutes daily, or 12 hours per month.

* Record-keeping - 30 minutes daily, or 12 hours per month.* Training - Supervisory interaction and in-service training, four hours per month. plus

eight hours every quarter.

22. The CCHA could be an ECEC teacher, a traditional birth attendant, a primaryschool teacher, a previously-trained community health worker, or any other reasonablyliterate, numerate and credible community resident with a commitment to undertake theseactivities and the time to do so. Who would supervise the CCHA depends on which ofthe three delivery models operated in a particular division. However, CCHAs wouldreceive monthly supervision for at least the first six months after completion of training,and no less frequently than quarterly thereafter, as well as four full days of formal in-service training yearly. Only divisions which could assure that supervision frequencywould be eligible to take part in the component. The supervision routine would bedeveloped by the MOH or implementing NGO and approved by the national workinggroup (see below).

23. CCHAs would receive preservice training for 45 days each in two batches of 50 atthe district level. Supervisors would receive at least ten days' full-time training; at leastthree days would be joint with CCHAs from the same division. The curricula would beapproved by the national working group (see below) after development and pretesting byeither the MOH individually or in collaboration with one or more NGOs under contract.

24. Under the MOH delivery option, the component would finance a program to traindistrict MOH staff to train CCHAs and supervisors in technical subjects. The communitymobilization and behavioral change aspects of the training would arranged by NACECE.It may choose to have DICECE staff trained for that purpose by the social marketing firm

Annex DPage 6 of 8

which would prepare communications materials. The District Medical Officer would berequired to release staff for training as trainers and subsequently to train componentpersonnel as required. To even out the training and management load, each district willinaugurate the component in one division per year.

Material Support

25. Each CCHA would receive a scale for weighing children in 1 OOg incrementswhich could be calibrated in the field. Scales and medications would be procured eitherthrough international competitive bidding (ICB) in accordance with World Bankguidelines or through UNICEF, which the Bank recognizes as equivalent to ICB. If itwere the procurement agency, UNICEF would arrange their delivery to MOH offices atthe district level or to NGOs, depending on the service delivery mode in each district.

26. Communications materials would be developed under contract with socialmarketing consultants who also might contribute to the development of a componentcommunications strategy. To minimize translation and related printing complexities andcosts, emphasis would be on verbal and visual rather than written communication.

D. Component Organization and Management

27. National Level. Overall manager of the component at national level would be theofficial seconded from the MOH in the MOE office responsible for project coordination.He or she would chair a health and nutrition working group. Its membership wouldinclude representatives of the sections of the MOH most directly concerned with MCH,including immunization; the community mobilization office of NACECE, and NGOsactive in providing outreach health/nutrition services at the periphery. Others withrelevant skills and experience could also be invited to join. The working group wouldmeet at least quarterly. It would: (a) review proposed component budgets and workplans; (b) track physical and financial progress of the component, including monitoringand evaluation activities; and (c) recommend ways of resolving implementationbottlenecks. Each member would be expected to spend at least one day per quarterobserving component activities in the field.

28. District Level. The District ECD Implementation Committee would oversee thecomponent at district level and assure coordination among the agencies involved. Themain tasks at the district level would be to work with division staff to formulate adivision work plan and budget, to ensure timely implementation and proper monitoringand to resolve local operational issues.

29. Division Level. DICECE program officers decentralized to the division levelwould have an oversight responsibility in regard to community mobilization for healthand nutrition activities in pilot project areas. As part of their ECEC supervision, theywould be expected to review levels of community participation in the health and nutritionproblem and act as an early warning system for major demand-supply service gaps.

Annex DPage 7 of 8

30. Community Level. Before introducing the pilot program, a plan for introducingthese services to the community needs to be formulated and carried out. The purpose ofthe plan is to ensure as good a fit as possible between services available through theproject and the community's priorities and perceptions. By sensitizing both thecommunity and service providers in advance, a more favorable implementation climatehopefully will emerge.

31. At each of these levels, a series of health management committees have alreadybeen constituted by the MOH for primary health care. These committees will coordinatewith the ECD Committees in the planning, supervision and monitoring of health activitiesin ECD centers and the communities. The health coordinators at each level will facilitatethis process.

Annex DPage 8 of 8

Table 2 Health And Nutrition Component Matrix

Problem Target Group Intervention Process Indicators Impact Goal Physical Inputs Who Does It?

PEM Preschool children Monthly weights and Coverage: children Increase proportion of Scales, growth GMPA for children(faltering growth) > 1 year of age nutrition counseling of weighed as % of target children with normal charts <3; ECE teacher

mother group growth velocity for >3 children

Diarrhea Preschool children Train care-givers on home No. of GMPA monthly Reduce severity, duration Communications GMPA> I year of age treat-ment and when to contacts on diarrhea of diarrhea episodes materials

seek professional care management

Acute Preschool children Train care-givers to No. of GMPA monthly Reduce ARI severity, Communications GMPA for childrenRespiratory > 1 year of age recognize symptoms and contacts on ARI duration materials <3;ECE teacherInfections (ARI) in basic care management for > 3 children

Vitamin A Preschool children Semiannual Vitamin A % of children covered Reduction in acute Vitamin A GMPA for childrenDeficiency > 1 year of age supplementation Nutrition manifestations capsules < 3;ECE teacher

education of caregivers Communications for >3 chil drenmaterials

Worms Children 3-6 years Periodic deworming % of children covered Reduce prevalence, Mebendazole ECE teacherHygiene education No. of GMPA monthly intensity of infection Communications /GMPA

messages delivered Reduce re-infection rate materials

Schistosomiasis Region-specific Annual prophylaxis % of children covered Reduce prevalence Praziquantel ECE teacherchildren 3-6 years /GMPA

Malaria Preschool children Presumptive case % of children treated and Avert acute phase of Chloroquine GMPA/>I year detection, treatment, referred malaria; reduce incidence Communications ECE teacher

referral No. of bednets in materialsPromotion of bed nets community

Annex EPage 1 of3

ECD COMMUNITY GRANTS SUPPORT COMPONENT

A. Background And Objectives

1. The objectives of this component are:

(a) to assist the most needy communities in developing financially viable andsustainable ECD services.

(b) to assist the most needy preschool children to access ECD services.

2. Experience in the last decade indicates that thousands of Kenyan communities areinterested in the development of ECD services and parents have been willing to providetheir own share by the providing land, school building and paying fees for operatingexpenditures. However, most of the community/parent-managed ECD centers areconstrained by low levels of funding. The WB (1995) series of studies on early childdevelopment show that these community owned and managed early child developmentcenters (ECD) rely almost exclusively on parents' fee contributions for its operating andmaintenance costs, and virtually no direct contributions from government. These centerslack sustainable financing since fees are not enough nor are collected regularly andtherefore are not sufficient to pay for recurrent costs such as pay for the preschoolteacher/provider, or learning materials, maintenance of facilities or for feeding or healthservices.

3. This pilot financing mechanism is intended to test and learn from these pilotsalternative methods of making these ECD centers financially viable and sustainable overthe long term . A financing mechanism using trust funds will be tested incommunity/parent-managed ECD centers.

B. Description Of The Proposed Financing Mechanism

4. Overview of Mechanics for the Grants. This pilot will set up an ECD TrustFund for each pre-school in order to provide the school with a steady income stream tomeet monthly recurrent costs. In order for an ECD center to qualify for the fund, thecommunity must initially collect an amount for an ECD Fund. The project will thenprovide a grant which will be added to the ECD Trust Fund account. The minimumamount eligible for a grant will be six months operating costs of the center. Themaximum amount that will be matched over the four years of the project will be KSh100,000. The ECD Fund will be held where applicable in a protected interest bearing trustaccount in the nearest approved bank with three signatories designated by the ECDCommittee (including the chairperson and the treasurer). The Fund can be used to payfor eligible expenditures (such as augmenting teachers salaries, learning materials, schoolimprovements, bursaries and school health and nutrition). Every month the pre-schoolcommittee will deposit the fees collected and make withdrawals against pre-approvedbudget for eligible expenditures which must be submitted together with the withdrawal

Annex EPage 2 of 3

request. Every quarter, the statements of expenditure will be sent to DICECE/NGO withthe monthly budgets attached for accounting and auditing purposes.

5. The community would be able to fund a significant proportion of the operatingexpenses of the ECD center. Parents will continue to pay school fees and any savings canbe used to periodically increase the capital fund. The community will be encouraged tofurther build up the fund by harambee since inflation is likely to eat up the capital if nonew funds are added or if school fees is not consistently collected.

6. This financing mechanism is intended to make the center financially self-sustainable beginning in the third year of the project. The purpose of the piloting is tounderstand and learn from the experience. Technical assistance in self-management,accounting, fund raising (by income generating activities), planning and budgeting willbe provided by the community mobilization and capacity building component of theproject.

7. Eligibility Criteria for the Centers. In order for an ECD center to qualify forthe matching grant, the following eligibility criteria will be applied:

(a) The preschool must be community/parent managed.

(b) Current (1995) fee per child charged by the preschool should be less thanK Shillings 3,000 per year. (Reason: preschools charging fees higher thanthis amount are likely to be adequately funded)

(c) The center must have an organized preschool committee--at least with achairman, secretary and treasurer--and meet regularly.

(d) The center committee members must have undergone training inbookkeeping, banking, planning and budgeting.

(e) The center must have a bank account, where applicable, with threesignatories.

(f) The center must have a certified record of school attendance, list of pupilsand information regarding these pupils.

(g) The center budget must be affixed on the premises and must be approvedby the committee.

C. Criteria for Selection of Pilot Project Areas

8. Since the pilot project is intended to test both the technical and administrativefeasibility of grants, the pilot areas will be selected based on criteria that will allow for asystematic evaluation of its impact on children and success (or failure) in administrativeprocedures. The selection should allow for testing of the matching grant administrationin difficult areas as well as in areas with good administrative infrastructure.

9. For purposes of this pilot project, a total of 2,000 preschools will be selected in 14districts. The final selection of districts and divisions within these districts will be

Annex EPage 3 of 3

determined by MOE using pre-determined criteria and after considering the availabilityof other ECD programs currently sponsored by other donors.

D. Phasing Of Pilot Project

10. The grants pilots will be introduced in the second year up to the fourth year of theproject. During the first year, the administrative procedures will be firmed up by MOEand the selection of the project areas will be determined. During the first year, thecommunity mobilization and capacity building is expected to be conducted in the pilotareas. This includes the organization/strengthening of the preschool committees, trainingin accounting, management, procurement and banking of key members of the committee,and preparing the preschool for the pilot grants. It is also expected that the preschoolteacher will be given training/orientation, or enrollment in the training courses.

E. Administrative Procedures

11. Grants will be allocated to preschools under the following procedures:

(a) Selection of Pilot Areas. Pilot districts and divisions will be selectedusing the above criteria. The selection process will be designed to affordmaximum transparency and impartiality.

(b) Awareness Campaign. News and information of the availability of thematching grants will be disseminated throughout the pilot areas.

(c) Submission of Grant Application and Certification of Grant Award.Applications will be received from the selected divisions. Based oncriteria for eligibility, the center that will be awarded the grants will benotified.

(d) Letter of Agreement. After selection of the center, a Letter ofAgreement will be signed by the NGO/MOE and the Chairperson of theECD Center Committee specifying the terms and conditions of the grant.

(e) Disbursement of Grants. Grants will be disbursed into the bank account--a protected Trust Fund-- of the ECD center. The project will disburse thegrant up to a ceiling of K Shillings 100,000 unless otherwise agreed.

(f) Report of Quarterly Statements. Quarterly SOEs will be the basis formonitoring the use of the grant, and for evaluating the benefits accruing tothe receiving ECD centers, and identifying measures to be taken to inDecember, the second in March and the third in July of each year.

(g) Auditing. Random audits will be conducted against records maintainedby the ECD center to verify utilization of the grant.

Annex FPage I of 6

PROJECT MANAGEMENT AND COORDINATION

Overall Project Management and Coordination

1. The National Steering Committee. The project will receive overall policy andstrategic direction from a national, intersectoral ECD Implementation Committee(NECDIC) chaired by the Permanent Secretary, Ministry of Education. Members of thecommittee would include the Director of Education, the Chief Inspector of Schools, theSenior Deputy Director in charge of Primary Education, the Director of the KenyaInstitute of Education, the Coordinator of NACECE; the Secretary, Teachers' ServiceCommission, a senior official each from the Ministries of Finance, Health, Culture &Social Services, Local Government and Home Affairs, representatives of NGOs andnominated experts. The Project Coordinator (see below) would be the Secretary to theCommittee. The committee would meet at least once a quarter to discuss and approveproject work plans and budgets, ensure prompt deployment of funds for project activities,review project progress and impact and discuss policy issues arising from theimplementation of the project. The constitution of the NECDIC is a condition for Boardpresentation and assurances will be sought for the maintenance of the committee duringthe project.

2. The ECD Section of the Directorate Division of MOE. The ECD section of theMinistry of Education will be strengthened and the head, whose qualifications andexperience will be satisfactory to IDA, will be named Project Coordinator. The ProjectCoordinator will (a) be the Secretary of the ECD Implementation Committee (b) facilitateproject coordination and implementation and monitor project progress and (c) handleIDA's administrative requirements. The ECD section will be strengthened with four newprofessional positions for Monitoring and Evaluation, Health and Nutrition andCommunity Development and Accounting and two support staff. Responsibilities of theunit include the preparation of annual work plans in accordance with the ProjectImplementation manual, monitoring of project activities and project finances andaccounting. The PE would be responsible for managing the information data base andconducting analysis of implementation and procurement. Assurances will be sought atnegotiations for the nomination of a Project Coordinator satisfactory to IDA during theproject.

3. NACECE. The functions of NACECE are being reviewed and the institutionstrengthened to carry out its overall innovation and quality assurance roles. Existingpositions include 12 professional staff in 6 sections responsible for training, curriculum,human growth and development, research and evaluation, resources management andcommunity and parental education respectively. The institution is managed by aCoordinator and a Deputy Coordinator. Job descriptions of existing staff will beredefined and a staff development plan prepared. The filling up of key vacancies will bea condition of Board Presentation. NACECE will be provided with necessary equipmentand supplies including desk top publishing facilities and tools for making play materialsand the library will be strengthened. NACECE's establishment will be strengthened per

Annex FPage 2 of 6

existing proposals under consideration of KIE. Funds have been allocated for specialisttechnical assistance for project related activities.

The District Level

4. The District Steering Committee. An intersectoral District ECDImplementation Committee (DECDIC) will be constituted at the district level whichwould meet on a monthly basis. The Committee would be chaired by the DistrictEducation Officer and the Program Officer, DICECE will be the Secretary. Othermembers would include representatives from the Ministries of Health, Culture and SocialServices, Local Governments and NGOs working in the district.

5. DICECE. At the district level, the DICECE will facilitate a consortium of allactors involved in the delivery and promotion of ECD services. The DDC and the DEBwill be used to discuss ECD issues and coordinate resources. The current DICECEstaffing pattern consists of 6 professionals each in 20 fully fledged DICECEs (those thatoffer residential training) and 4 professionals each in 31 associate DICECEs. Howeveronly 168 of the 292 positions are currently filled. Under the project, the recommendationof the management study undertaken as part of project preparation, to decentralize theDICECE staff to the divisional level will be piloted. DICECEs will be staffed up to thefull existing establishment of 6 trainers and staff strength will be increased to 8 in someDICECEs by the end of the project. This will involve the filling up of vacant positions(for which the process has been initiated by the Teachers Service Commission), and theestablishment of essential new positions during the course of the project. DICECEpositions include a Program Officer in the grade of Senior Lecturer, a CommunityMobilization Officer and Training Specialist in the grade of Lecturer, and a data analyst.A pilot program specialist will be included for each pilot district. The professional staffwill be supported by a bookkeeper, typist and general helper. The DICECEs will bestrengthened with necessary equipment and supplies such as computers, audio-visualequipment and duplicating machines. Means to improve mobility will be provided. Asan initial exercise, the DICECE will map ECD facilities in each district, identify all theentities providing ECD services including local governments and the private sector,identify gaps and areas that are not being served. Annual district plans will be based onthe baseline information and the decisions of the DDC and DEBs.

The Community Level

6. Pre-school Committees. At the community level, pre-school committees wouldhave the principal responsibility for the management of the ECD centers and would betrained for the purpose. Those pre-schools that are attached to primary schools andmanaged by statutory pre-school committees, will expand their committees to include thepre-school teacher and representatives of parents of pre-school children. Terms ofreference and composition of these committees are elaborated in the ProjectImplementation Plan. Stand alone pre-schools will be managed by community

Annex FPage 3 of 6

committees. These committees would receive training and technical assistance toimprove their managerial capabilities (see Annex C).

Supervision

7. Strengthening both the quality and the amount of supervision of ECD teachingand management practices is an important means that the project will use to improve thequality of the centers. Currently, most ECD teachers and committees receiveconsiderably less technical guidance than they need. Partly this is because the ECDprogram has expanded so quickly and into even difficult-to-access areas. The samplesurvey conducted as part of project preparation showed that headmasters of primaryschools attached or linked to pre-schools often provide some supervision. Localgovernment sponsored centers are supervised by pre-school supervisors employed bylocal governments. Assistant Inspectors of Schools at the zonal level also visit pre-schools attached to primary schools. However, supervisory visits to the majority of ECDcenters tend to be irregular and even less frequent than once every 90 days, althoughmonthly technical supervision particularly of untrained preschool teachers would be amore appropriate norm. The lack of a supervision strategy, standards, work routines andtraining affects the quality of whatever supervisory interaction takes place.

8. The project would seek to make supervision a more effective tool for improvedprogram performance in three ways. First, it would finance the cost of establishingsupervision protocols which emphasize supervision as an opportunity for problem solvingand in-service training for ECD teachers rather than as mainly an inspection function.Second, the project would finance the training of supervisors in the application of the newapproach to supervision. Third, by a combination of redeploying and augmentingDICECE staff, and training headmasters and primary school inspectors in the supportivesupervision of pre-schools, the project would raise the frequency, regularity and qualityof supervision to more satisfactory levels.

9. The Inspectorate MOE would be responsible for formulating the new supervisionstandards and work methodology. The protocols would derive from a careful analysis ofthe main performance weaknesses. They would take into account the wide variations ineducational background and previous experience of ECD teachers as well as thedifference in professional skills between the 70% who remain untrained and those whohave completed the pre-service training course. The InspectoratelNACECE also woulddevelop and organize training programs to speed the effective adoption of the improvedapproach to supervision.

10. The project would test three ways of increasing the frequency, duration andeffectiveness of ECD teacher supervision. The first innovation would be to increase anddecentralize DICECE staff to the divisions. Under this option, one DICECE officer inthe grade of Assistant Lecturer would be assigned at the division level for every 50preschools (approximately two officers per division). This ratio would permit onesupervisory visit to each pre-school every three months. While this is far less thandesirable, the use of program officers may improve the quality of supervision and

Annex FPage 4 of 6

stationing them closer to the preschools should increase the supervisory time per visit.The core DICECE staff at district level under that scenario would consist of fourprofessionals. Divisional DICECE staff would be brought to the district level as neededto help teach the residential DICECE pre-service courses for untrained preschoolteachers. DICECE staff will be provided motorcycles.

11. Secondly, the zonal inspectors of schools (ZIS) at the subdivision or zonal levelwill be trained in pre-school supervision and their job descriptions revised to include thesupervision of pre-schools. The number of ZIS per division would be increased to enablethem to have a reasonable workload in view of the additional responsibility for about 30pre-schools per ZIS. The divisional DICECE officer would supervise and provide in-service training to the ZIS and would make regular spot visits to weak centers. Controlmechanisms will be put in place to ensure proper utilization of vehicles.

12. Thirdly, the project would create formal supervisory linkages between headteachers of primary school and neighboring ECD centers. Around 40% of centers alreadyare either attached or in some way linked to a primary school. Mapping school locationswould result in clusters of around five preschools for which head teachers would havesupervisory responsibility. The DICECE would train head teachers in supervisionmethodology and practices. Head teachers would make monthly supervisory visit to eachECD teacher in the particular cluster. Bicycles will be made available for purposes ofinspection.

Project Implementation

13. Core components. NACECE will be responsible for implementing the corecomponents of Improved Teacher Performance/Training and CommunityMobilization/IEC. Two implementation models will be tested under the CommunityTrust Funds/Support Grants and Health and Nutrition components. In the first model,lead NGOs will be selected to implement the pilots in selected districts subject toapproval of work plans and budgets by the NECDIC and DECDICs. The NGOs willsupport community based organizations in grassroots implementation. Criteria forselection of national NGOs includes an established working relationship with GOK,experience in ECD, financial management capacity and the contribution of counterpartfunds to cover overhead/administrative costs and project activities. In the second model,the GOK will implement the pilot component with collaborating agencies at the districtlevel. Funds would flow directly to the districts where they would be disbursedaccording to work plans approved by DECDICs and the NECDIC. The Transition Pilotwill be implemented by the MOE Inspectorate and KIE.

Project Implementation Manual

14. A draft Project Implementation Manual (PIM) was submitted to IDA on April 1,1996. The Manual lists the districts targeted for implementation of the pilot activities andthe criteria for their selection. To facilitate the process, a ranking of districts on the basisof composite income, nutrition and education indicators has been prepared. On the basis

Annex FPage 5 of 6

of these indicators, the GOK has made a preliminary selection of 24 districts for theimplementation of the pilot components. The further selection of districts for theimplementation of each pilot will be made on the basis of on-going activities in thedistricts. The selection of NGO led and GOK led districts, similarly, will be based on theextent and nature of NGO presence in selected districts. Each district will have one typeof pilot activity and leadership provided by GOK or an NGO in a district will be mutuallyexclusive. Implementation of the pilots at the community level is not expected to beginbefore a full year of preparation including the selection of NGOs and training. The PIMlists the activities under each component, persons responsible, time table and costs. TheManual also provides job descriptions, qualifications, recruitment timetables and workroutines for key positions at various levels.

15. Annual project plans for each fiscal year (July to June) will be submitted to IDAin January of each year, following a joint review of project implementation. A mid-termreview of the project will be held in February 1999. The results of the evaluation,particularly of the pilots, will be used for purposes of structured learning and anynecessary adjustments in project design and implementation.

Annex FPage 6 of 6

Organization Structure - Early Child Development Project

National SteeringCommittee

NACECE Project Coordinator(Teachers Training (Head of MOE

and Community ECD Unit)Mobilization)

_ ~~NGOs _GOK(Grants - Pilot Health (Grants - Pilot Health

& Nutrition Pilots) /Nutrition Pilot)

District SteeringCommittee

DICECE

Comimunity PreschoolCommittee

ECD Center

Annex GPage 1 of 10

MONITORING AND EVALUATION COMPONENT

A. Objectives

1. The Monitoring and Evaluation (M&E) component would have three goals: first,to track the supply of ECD and other inputs in the project; second, to monitor projectoutcomes, such as increased participation, especially by disadvantaged groups, in ECDcenters and improved quality of ECD services; and finally, to evaluate the impact of theproject and its components, wherever possible, on measures of child outcomes, such asthe cognitive, social and physical development of children.

B. Framework and Indicators

2. The impact on child outcomes of ECD services provided by the project can bestbe viewed as a series of production processes involving different inputs and outputs. Theultimate output of this process is the cognitive, social and physical development of thechild. Among the many inputs determining this outcome are the (unobserved) innateability of the child, socioeconomic status of the family, the environment of thecommunity in which the child resides, and the 'output' of ECD services.

3. The latter is itself 'produced' by various ECD inputs, such as teaching staff, caregivers, home facilities, school and classroom facilities, learning materials, andcommunity involvement, among other things. The project and its components thusrepresent the first stage of inputs into the 'production' of child development.Intermediate outputs of the project would include the total number of children, as well asthe number of children from underprivileged family backgrounds, participating in ECDcenters and the quality of ECD services being provided.

4. Each set of inputs and outputs in the production process is measurable by variousindicators. For instance, project inputs can be measured by the amount of funds spent ondifferent components, the number of teachers or care givers trained, and the number andtype of school feeding programs operated. An illustrative list of project output indicatorswould include increased enrollment rates (aggregate and separately for each gender andfor different age and spatial groups); increased availability of ECD services for childrenfrom low-income backgrounds; improved quality of learning materials and classroomfacilities; increased levels of community and parental participation in ECD activities; andmore comprehensive coverage of immunization and feeding programs.

5. Non-project inputs into child quality can be divided into three categories: child-level factors (such as age, sex and birth order); household-level variables (such ashousehold size, parental age, occupation, education, and family income); and community-level variables (such as the availability and quality of existing school and healthinfrastructure).

Annex GPage 2 of 10

6. Finally, sample indicators of child outcomes would include, inter alia, letter andword recognition, language and arithmetic skills, reading skills, and intelligence-testscores (cognitive development); age of entry into primary school and grade progression inprimary school (primary school readiness); weight, height, and sensory motor skills(physical development); and peer group interaction and classroom participation (socialdevelopment).

C. Detailed Description of the Monitoring Component

(a) Nature of data to be collected

7. The existing MOE and DICECE staff at the district, divisional, and zonal levelswill be used for monitoring purposes. These include the DEO, EO, School Inspectors,AEO, ZIS, TACT, and the ECD Officer. In addition, to ensure data reliability andutilization of data by final users, it is proposed that most of the monitoring data at thecenter level be collected by preschool teachers and head teachers.

8. At the ECD center, monitoring data would be collected by means of threeinstruments: child cards, center registers and wallcharts, and a survey of ECD centers.

9. Child Card. Every center would be required to maintain a register. One copy ofthe card would be kept at the center, and another copy would be kept by the child'smother. The child card would consolidate information already being collected in theadmission and attendance records that are maintained by most preschools. In addition tobasic identification details (such as name, parents' names, address,village/zone/division/district of residence, etc.), information would be collected on thechild's characteristics (viz., age, sex, birth order in the family, type of disability, if any,and place of birth) and family background (e.g., parents' occupation, age and education).

10. The child card would also include a running health and immunization record thatwould note the dates and results of anthropometic measurements and immunizationsreceived by a child. In addition, a running attendance record would note the number ofdays in each month that the child was absent from the center for reasons of ill health,nonpayment of fees, or other factors. Finally, an assessment record would note the datesand results of any cognitive or social assessments or tests performed on the child.

11. Center Register and Wall Chart. In addition, each center would maintain apreprinted register and wallchart where aggregated information from the child cards andon the center worker's performance would be noted monthly. The center register wouldcontain data on no more than 15 monitoring indicators, while the wallchart would reporteven fewer -- say, 8 -- indicators. Examples of these indicators are: center attendancerate during the preceding month, number of children immunized, supervisory visits to thecenter, and time spent by the center worker in major activities (e.g., stimulation, teaching,health and nutrition, counseling, training, etc.). The wallchart would be put up in alocation for maximum visibility. It would be erasable, so that the information on it couldbe readily erased and updated each month.

Annex GPage 3 of 10

12. Survey of Centers. A one-time sample survey of centers participating in theproject would be undertaken at the time of project initiation. The survey would beupdated annually to note any changes taking place over the course of the year. A 10%probability sample of all centers participating in the project will yield a sufficiently largesample size to provide representative monitoring data. This sample will have to bestratified by geographical region as well as by project component for retainingrepresentativeness.

13. The information to be reported would be similar to that covered in the 1994Survey of ECD Centers. (Indeed, the same sample of centers selected for the 1994 surveycould be used.) Briefly, it would include the center's name, address, registration number(if any), sponsorship, and the type of attachment (if any) of the center to a primaryschool. In addition, information would be collected on the physical facilities of the center(viz., number of rooms in the home, type of classrooms; and numbers of functioningtoilets, desks, blackboards, water fountains, and play fields). Data would also be obtainedon the number of school committee and PTA meetings; frequency and coverage ofschool-wide medical and nutritional interventions, such as deworming, growthmonitoring, and vitamin A supplementation; and frequency and type of school feedingprograms. In addition, the survey would note the dates and types of specific projectinterventions.

14. Finally, the survey would obtain detailed information on each staff member,including his/her function (e.g., child care, whether teaching, administration, etc.); dateand manner of recruitment in the center; initial academic and professional qualificationsat the time of recruitment; the date, type and duration of any additional training obtainedwhile employed at the center; and the value of salary and other benefits received.

(b) Frequency of Data Collection

15. Child cards would be updated continuously, and would contain precise dates ofevents (such as immunizations). For example, information on a child's familybackground would be collected only once, either upon the child's admission in an ECDcenter or at the time of the center's induction into the project (for children alreadyenrolled in the center). Likewise, whenever a child would be weighed, his/her weightwould be recorded, along with the date of the measurement, on the child card. Centerregisters and wallcharts would be updated on a monthly basis. The baseline samplesurvey of ECD centers would be undertaken at the time of project initiation, and updatedfor any changes each year.

(c) Selection of ECD Centers

16. Child cards would be maintained by all centers participating in the project. Thesurvey of centers would be administered to approximately 10% of all centers participatingin any component of the project. Centers will be selected for inclusion in the survey onthe basis of several criteria, including geographic location, socioeconomic status, andparticipation in various components of the project. A certain number of centers will besurveyed in the first year even though the project might not be phased in these centers

Annex GPage 4 of 10

until a later period. These centers would provide a matched control group in years oneand two of the project, thus permitting comparison of process outcomes in communitiesexposed and not exposed to the project intervention.

(d) Who would collect the data?

17. Community Health Workers and Head teachers at the ECD center would beresponsible for maintaining child cards for each of their pupils. Center registers andwallcharts would be maintained by the head teacher or other center workers. The surveyof centers would be undertaken by a team comprised of technical consultants, MOE staffand staff from the Central Bureau of Statistics.

(e) Transmission and Use of Monitoring Data (Management Information System)

18. Each quarter, the ECD officer or DICECE officer-in-charge would collectinformation from the child cards, center registers and center wallcharts in each of thecenters in his/her area, and bring it to the DICECE office. The information would beentered in a computerized database at the DICECE office. (In DICECE offices that donot have electricity or computers, the information would be entered manually on a codingsheet.) Periodically - say, every quarter - the DICECE office would transmit theinformation electronically - or manually in the case of offices not having computers,telephones or fax/modems - to the PPE section in the MOE, which would maintain anational database of ECD-enrolled children and ECD centers.

19. There would be several ways in which the management information system (MIS)could be used for district planning purposes. First, trends in enrollments, by age group,socioeconomic group, and gender, could be calculated for the entire district as well aszones within the district. This would indicate progress that the district and its divisionswere making in expanding access to and improving equity in the provision of ECDservices. Likewise, trends in immunization rates, anthropometric indicators, and childassessment indicators would provide important evidence on the progress (andweaknesses) of the project in specific areas. Comparisons of enrollment rates and otherindicators across centers participating in various components of the project and those notparticipating in these components, with appropriate controls for other variables, wouldindicate the marginal effects of different project components on project outcomes.

20. Second, a system would be set in place whereby the DICECE officer wouldsupply certain aggregated information and profiles back to each of the centers in thedistrict. For instance, centers would receive information on how their enrollment trends,nutritional status indicators or community mobilization efforts compared against othercenters in the district. The pointing out of specific areas of weaknesses and strengths toeach center would permit centers to deploy their resources differently or to target theirECD services more narrowly to specific age, sex or socioeconomic groups. This is anextremely important aspect of the monitoring component, and one whose importancecannot be overemphasized.

Annex GPage 5 of 10

21. Third, the national database would be helpful in evaluating the impact of specificproject inputs on project outcomes, like national enrollments, teacher quality, andparticipation in ECD by low-income groups. The monitoring data would also supplementthe mid-term and post-project impact evaluation to be undertaken. To the extent thatsome centers reporting monitoring data would be ones where the project componentswould only be phased in later, one would have a control group of centers not (yet)exposed to project intervention.

D. Detailed Description of the Evaluation Component

22. The evaluation component differs from the monitoring component in that it willdeal with the impact of the project on child outcomes. For a proper evaluation exercise,children not exposed to project intervention will be needed as a control (comparison)group. This in turn implies that ECD center-based data are not sufficient for evaluatingthe impact of ECD services on child outcomes; the data would have to come from ageneral survey of households, some of whose children have been exposed to ECDservices and others not.

23. The evaluation component will consist of a baseline survey of households to beundertaken around the time of project initiation (January - July 1997). The samplingdesign will have to be developed so as to ensure inclusion of control households that willnot have access to project-supported ECD centers as well as sufficient coverage ofhouseholds exposed to different project components. In addition, the sample will need toinclude a sufficient number of children of different ages in each of the projectintervention and control groups to undertake cohort-specific analysis. A sample of 5,000households may need to be fielded, of which approximately one-half will be drawn fromthe catchment areas of ECD centers participating in the project. The selection ofcommunities for surveying will require planning as treatment groups will have to bematched to control groups on the basis of socioeconomic, demographic andinfrastructural characteristics.

24. Because the cognitive, social and physical development of children is determinedby much more than ECD program intervention, the household survey will have to be ageneral-purpose one that obtains information on a wide range of individual-, household-,and community-level variables. Because cognitive and social development are importantoutcomes that may be influenced by early childhood education, the baseline survey willinclude well-established psychological tests of cognitive achievement, intelligence, andsocial interaction (administered to, say, a subset of sample children).

25. The same households will be resurveyed for a mid-term evaluation in year three(January 1999) of the project and once again for the final evaluation at the end of yearfive (viz., January 2001). The repeat surveys will obtain broadly similar data as thebaseline survey.

26. Because of the large size of the data sets generated from the longitudinalevaluation surveys and the complex nature of the methodology involved in proper

Annex GPage 6 of 10

evaluation work, the impact evaluation will need to be undertaken by a group of technicalconsultants and staff from the Central Bureau of Statistics that are familiar with large-scale data collection and analysis. This group will work in close collaboration withNACECE and the MOE at all stages of the evaluation - survey design, data collection,and data analysis. Indeed, since the Central Bureau of Statistics (CBS) is proposing tofield a national Welfare Monitoring Survey of Households annually, the project might noteven need to conduct separate evaluation surveys. With (a) minor modifications,including an additional module, to the basic WMS questionnaire, (b) better coordinationon timing of the surveys with the CBS, and (c) additional purposive over-sampling ofhouseholds in project intervention regions, it might be possible to use the proposed WMsurveys as the baseline, midterm and post-project evaluation surveys" This will result inconsiderable costs savings.

E. Detailed Description of Special Studies

27. In addition to the monitoring and evaluation exercises described above, there willbe a need for special studies that: (a) address policy development issues; (b) deal withoperational research issues; and (c) evaluate anv specific issues or problems not coveredby the regular M&E activities (e.g., training and supervision). For example, monitoringdata from the child cards, center registers and wallcharts, and the survey of centers willprovide quantitative information on project outcomes. They will not permit monitoringqualitative changes taking place among parents and communities in behavior andattitudes, as well as monitoring such things as the effectiveness and appropriateness ofcurriculum changes as perceived by teachers. For this reason, it would be important tosupplement the quantitative data on monitoring with qualitative information obtainedfrom small focus group discussions with teachers, parents and communities. These couldbe the basis of a special study.

28. Another set of special studies would focus on evaluation of specific projectcomponents. For instance, the issue of which package of health and nutritionalinterventions -- immunization, Vitamin A supplementation, deworming -- is the mostcost-effective is one that calls for a more focused evaluation. Likewise, the mosteffective mode of delivery in the community mobilization component is an operationalresearch issue that is best addressed by a special study devoted entirely to this question.

29. Not all of the special studies that need to be undertaken can be described inadvance; the need for some of them might be felt during the course of the project.

F. Organization and Management

30. At the national level, the overall manager of the component would be the head ofthe Research and Evaluation group within the MOE. He or she would chair an M&Eworking group, whose membership would include representatives from the Ministry ofEducation, Ministry of Health, Central Bureau of Statistics, NGOs active in ECD andtechnical consultants.

Annex GPage 7 of 10

31. At the district level, a steering committee for M&E would be established underthe chairmanship of the DEO, and would include the District Statistics Officer, EO,School Inspectors, AEO, ASI, TACT, the ECD Officer, and representatives of parents'committees, teachers' committees, and NGOs. This committee would oversee all M&Eactivities in the district. The District Statistics Officer (DSO) would be an importantplayer in this activity, since he/she currently is responsible for collection andmanagement of all data at the district level. However, in practice, most DSOs, who areeducation officers, allocate their time to several non-data-related activities. For the DSOsto be the chief M&E persons in a district, they would have to be released from their otherduties by the DEO.

32. In addition to data collection, management and analysis, the responsibilities of theDSO will include dissemination of monitoring information to the District EducationBoard and the District Development Committee and to the division people.

G. Training and Equipment

33. Currently, all preprimary school data are compiled and analyzed manually. Acomputerized management information system (MIS) will be an absolute necessity forusing large amounts of monitoring data to make quick and appropriate planning decisionsat the center, district and national level. Computers equipped with fax/data modems are,therefore, budgeted for each participating DICECE office. These will be used for dataentry, cleaning, management and analysis, as well as transmission and receipt of datato/from the MOE and NACECE on a continuous basis. In DICECE offices that do nothave electricity or telephone connections, the provision of computers with fax/modemswill be staggered, and the project will attempt to find better rental space for these offices.In addition, depending upon the availability of funds, the project could provide for acomputer networking system (including electronic mail facility) within the Ministry ofEducation and NACECE to facilitate intradepartmental communication.

34. At this time, all monitoring and evaluation work, as well as analysis of datacollected at the district level, is done at the national level. However, the capacity forundertaking rapid assessments based on data and using these assessments to alter programdesign or implementation remains weak at the national level. The project will provide fortwo new staff positions - data entry person and data analyst - at both the MOE and theNACECE. In addition, the project will attempt to build basic data collection,management and analysis capacity at the district level. This will involve training ofDistrict Statistical Officers in data entry, database management, simple analysis ofmonitoring data, and dissemination of monitoring analysis back to the ECD centers.Finally, the project will provide minimal training in the maintenance and updating ofchild cards, center registers and center wall-charts to ECD center head-teachers andworkers.

Annex GPage 8 of 10

H. Tentative Implementation Plan

Quarter I Selection of M&E Working Group at national levelYear 1: Selection of M&E Steering Committee at district levels

Installation of computerized MIS in the districtTraining of District Statistics Officers in data entry, managementand analysisSelection of technical consultants, preparation of baseline samplesurvey instrument, sampling design, pretest of questionnaire, etc.Finalization of child card, center register and center walichartdesign, and printing of these forms

Quarter 2 Baseline survey of households Distribution of child cards, centerYear 1: registers and center wallcharts to all ECD centers

Baseline survey of ECD centers

Quarter 4 Analysis of data from baseline survey of householdsYear 1: Analysis of data from baseline survey of ECD centers

Quarter 2 Mid-term evaluation survey of householdsYear 3:

Quarter 3 Analysis of midterm evaluation survey dataYear 3 Dissemination of results

Quarter 4 Final impact evaluation survey of householdsYear 5:

Quarter I Analysis of final evaluation surveyYear 6: Dissemination of results

Annex GPage 9 of 10

Key Performance Indicators

Kenya: Early Child Development Project

Performance Indicator Planned Actual %(specified annually in the AWPB) Difference

Input IndicatorsPercent of funds disbursed to components:

(a) Teacher Training(b) Community Capacity Building(c) Health & Nutrition Pilot(d) Community Matching Grants

Process IndicatorsProject processing time, by componentOverhead costs as percentage of total project costsNumber of new ECD centers openedAvg. amount of matching-grant contributions raised bycommunities for preschoolsNumber of supervisory visits by DICECE & Inspectorate& local authority staff to ECD centers

Output IndicatorsEnrollment rate in ECD/home based centers(% of all children aged 3-6 yrs), by genderEnrollment rate in ECD centers, by gender, for childrenbelonging to poorest income quintileNumber of preschool teachers trainedAvg. attendance rate for children in ECD centers (%)Proportion of children aged 0-3 and 3-6 yrs covered by:(a) deworming campaigns(b) Vitamin A supplementation(c) growth-monitoring campaignsNumber of preschool parents' committees formedAnnual number of meetings held by preschool parents'committeesAvg. presence/attendance rate for ECD teachers& workers (%)Avg. weekly contact hours in ECD centers (hours)

Output Indicators% of ECD centers constructed out of permanent materialsAvg. ratio of pupils to books and other learning materials% of parents who say they are involved inpreschool activities% of ECD centers having a school/center plan

Outcome IndicatorsLetter and word recognition among children 3-6 yrsWeight and height for age of children aged 0-3 & 3-6 yrsModal age at entry into primary schoolGross primary enrollment rateRepetition & drop-out rates in Standards I-IV(primary school)

Annex GPage 10 of 10

Midterm Evaluation

35. Midtern evaluation of the project will be undertaken with three instruments: arepeat survey of ECD centers, a repeat survey of households, and a participatorybeneficiary assessment. For the household survey, sampling design will have to bedeveloped so as to ensure inclusion of control households that will not have access toproject-supported ECD centers as well as sufficient coverage of households exposed todifferent project components. The repeat household survey will obtain information onhousehold income, household expenditure on preprimary (and primary) education,parental education and age, and the nurnber of children and their age, sex, weight, height,immunization status, participation in preschool or school, and performance on simplecognitive tests. A comparison of the results from the baseline household survey withthose from the midterm survey, with appropriate controls for project intervention andchanges in household situations, will indicate the midterm impact of the project onoutcome indicators.

36. The repeat survey of ECD centers will focus on physical facilities, software (i.e.,books, learning materials) availability, number of trained teachers, involvement of schooland parents committees in school management, and frequency and coverage of center-wide deworming, growth monitoring and nutritional supplementation activities. As in thecase of the household survey, a comparison of the results from the baseline survey ofECD centers with those from the midterm ECD center survey, with appropriate controlsfor project intervention, will indicate the midterm impact of the project on outputindicators.

37. Finally, the participatory beneficiary assessment will use focus-group discussionmethods to (midterm) evaluate the impact of the project on community and parentalattitudes and outlooks toward preprimary education and on classroom practices and ECDteacher philosophies. In addition, the beneficiary assessment will try to measure thesatisfaction of parents and communities with the project intervention and solicit theirsuggestions and comments on changes in project design and implementation.

Annex HPage I of 12

DETAILED PROJECT COST BREAKDOWN

Table 1 Project Cost Summary

(KSh '000) (US s '000)% Foreign % Total % Foreign % Total

Local Foreign Total Exchange Base Cost Local Foreign Total Exchange Base CostA. Core Service Delivery Support

1. Improved Teacher Training 264,662 6,600 271,262 2% 17% 4,812 120 4,932 2% 17%2. Community Capacity Bldg. & Mobiliz. 163,700 33,088 196,788 17% 13% 2,976 602 3,578 17% 13%

B. Pilot Components1. Health and Nutrition 164,953 81,569 246,522 33% 16% 2,999 1,483 4,482 33% 16%2. Community Grants 275,000 0 275,000 0% 18% 5,000 0 5,000 0% 18%3. Transition to Primary School 44,515 0 44,515 0% 3% 809 0 809 0% 3%

C. Project Management1. Institutional Strengthening 374,481 106,043 480,524 22% 31% 6,809 1,928 8,737 22% 31%2. Monitoring and Evaluation 46,103 9,800 55,903 18% 4% 838 178 1,016 18% 4%

Total Baseline Cost 1,333,413 237,100 1,570,514 15% 100% 24,244 4,311 28,555 15% 100%Physical Contingencies 66,671 11,855 78,526 5% 1,212 216 1,428 5%Price Contingencies 240,014 42,678 282,692 18% 4,364 776 5,140 18%

Total Project Cost 1,640,098 291,633 1,931,732 123% 29,820 5,302 35,122 123%

Annex HPage 2 of 12

Table 2 Improved Teacher Performance Component(Ksh '000) (US $ '000)

Investment Cost Units Unit Cost 1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

A. Training of Teachers (KSh)1. Two-year In-Service Tmg 13,750 13,800 35,880 39,330 35,880 39,330 39,330 189,750 652 715 652 715 715 3,4502. Five-Week Course 8,550 2,750 7,150 7,838 7,838 7,838 0 30,663 130 143 143 143 0 558

3. Two-Week Course 8,550 1,380 3,933 3,933 3,933 0 0 11,799 72 72 72 0 0 215

B. Training of Trainers1. Short Course 500 11,000 1,100 1,100 1,100 1,100 1,100 5,500 20 20 20 20 20 100

2. Supervisor Course 150 33,000 990 990 990 990 990 4,950 18 18 18 18 18 90

3. Trng of DICECE Trainers 200 55,000 2,200 2,200 2,200 2,200 2,200 11,000 40 40 40 40 40 200

C. Degree Course1. Undergraduate (Kenya) 20 275,000 1,375 1,375 1,375 1,375 0 5,500 25 25 25 25 0 100

2. Graduate (Kenya) 4 550,000 550 550 550 550 0 2,200 10 10 10 10 0 40

3. Graduate (Foreign) 2 6,600,000 1,650 1,650 1,650 1,650 0 6,600 30 30 30 30 0 120

D. Cuniculum Development 2,200 1,100 0 0 0 3,300 40 20 0 0 0 60

Total Cost-Improved Teachers' Training 57,028 60,066 55,516 55,033 43,620 271,262 1,037 1,092 1,009 1,001 793 4,932

Annex HPage 3 of 12

Table 2 Improved Teacher Performance Component (cont.)

Assumptions: Improved Teachers' Performance

Training No. of Teachers/Triners

A. Training of Teachers Total 1997 199I 1999 2000 20011. Two-year in-Service Tmg 13,750 2,600 2,850 2,600 2,850 2,8502. Five-Week Course 8,550 2,850 2,850 2,8503. Two-Week Course 8,550 2,850 2,850 2,850

B. Training of Triners1. Short Course 500 100 100 100 100 1002. Supervisor Course 150 30 30 30 30 303. TrainingofTrainers 200 40 40 40 40 404. Degree Course

Undergraduatc 20 5 5 5 5Graduate (Kenya) 4 2 2

Graduate (Foreign) 2 1 1

Unit Cost US SUnit Cost 1997 1998 1999 2000 2001

Traiing of Teachers USS1. Two-year In-Service Training 250 250 250 250 250 2502. Five-Week Course 50 50 50 50 50 503. Two-Week Course 25 25 25 25 25 25

Training of Trainers1. Short Course 200 200 200 200 200 2002. Supervisor Course 600 600 600 600 600 6003. Training of Tainas (DICECE) 2,000 2,000 2,000 2,000 2,000 2,0004. Degree Course

Undergraduate 5,000 5,000 5,000 5,000 5,000 5,000MA Degree (Kenya) 10,000 10,000 10,000 10,000 10,000 10,000PhD Degree (Foreign) 120,000 120,000 120,000 120,000 120,000 120,000

Annex H

Table 3 Community Capacity Building and Mobilization Component Page 4 of 12

(KSh '000) (US $'000)I. Investment Cost 1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

A. Mobilization1. National Orientation 2,750 2,750 0 0 0 5,500 50 50 0 0 0 100

2. District Orientation 2,750 4,675 2,750 2,750 0 12,925 50 85 50 50 0 235

3. PRA Workshops 1,375 1,375 1,375 1,375 0 5,500 25 25 25 25 0 100

4. Teaching Aides/Materials 0 275 275 275 0 825 0 5 5 5 0 15

Sub-Total Mobilization 6,875 9,075 4,400 4,400 0 24,750 125 165 80 80 0 450

B. IEC Materials Production 27,500 55,000 27,500 0 0 110,000 500 1,000 500 0 0 2,000

Units Unit CostC. IEC Equipment

Radio Cassette Recorder 58 120 191 0 191 0 0 383 3 0 3 0 0 7

Video Machine and TV S 58 1,100 1,755 0 1,755 0 0 3,509 32 0 32 0 0 64

Overhead Projectors 30 900 743 0 0 0 0 743 14 0 0 0 0 14

Video Camera 1 2,800 77 0 0 0 0 77 1 0 0 0 0 1

Still Camera 30 370 305 0 0 0 0 305 6 0 0 0 0 6

Typewriters 58 1,800 2,871 0 2,871 0 0 5,742 52 0 52 0 0 104

Duplicating Machines 30 3,000 2,475 0 2,475 0 0 4,950 45 0 45 0 0 90

Photocopier 30 7,200 5,940 0 5,940 0 0 11,880 108 0 108 0 0 216

Laminators 30 800 660 0 0 0 0 660 12 0 0 0 0 12

Paper Guillotines 30 180 149 0 0 0 0 149 3 0 0 0 0 3

Desk Calculators 30 180 149 0 0 0 0 149 3 0 0 0 0 3

Pocket Calculators 88 24 58 0 0 0 0 58 1 0 0 0 0 1

Gardening Tools 58 370 590 0 590 0 0 1,180 11 0 11 0 0 21

Sewing Machines 76 360 752 0 0 0 0 752 14 0 0 0 0 14

Cookers 116 800 2,552 0 0 0 0 2,552 46 0 0 0 0 46

Sub-totalEquipmentCost 19,266 0 13,822 0 0 33,088 350 0 251 0 0 602

Sub-total Investment Cost 53,641 64,075 45,722 4,400 0 167,838 975 1,165 831 80 0 3,052

II. Recurrent CostCommunity Mobilization Officer 3,960 3,960 3,960 3,960 3,960 19,800 72 72 72 72 72 360

Supplies, Miscellaneous 330 330 330 330 330 1,650 6 6 6 6 6 30

Office Equipment Maintenance 1,500 1,500 1,500 1,500 1,500 7,500 27 27 27 27 27 136

Sub-Total Recurrent Cost 5,790 5,790 5,790 5,790 5,790 28,950 105 105 105 105 105 526

Total Cost-Community Mobiliz/Cap Bldg. 59,431 69,865 51,512 10,190 5,790 196,788 1,081 1,270 937 185 105 3,578

Annex HPage 5 of 12

Table 4 Health and Nutrition ComponentI. Investment Cost (KSh '000) (US $ '000)

A. Training 1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

CHN Aides/Supervisors/TrainersPre-service Course Development 360 90 360 90 90 990 7 2 7 2 2 18Training Support Materials 300 75 300 75 75 825 5 1 5 1 1 15CHNA Pre-service Training 0 11,400 11,400 11,400 11,400 45,600 0 207 207 207 207 829

Supervisor Pre-service Training 0 92 92 92 92 368 0 2 2 2 2 7

In-service CHNA Resident. Trng 0 990 990 990 990 3,960 0 18 18 18 18 72Training of Trainers for

CHNAs/Superv 70 35 35 35 35 210 1 1 1 1 1 4Miscellaneous Training 3,500 3,000 0 0 0 0 64 55 0 0 0 0

Sub-total Training 4,230 15,682 13,177 12,682 12,682 51,953 77 285 240 231 231 945

B. EquipmentElectronic UNICEF Scales @

Sh.3300/ea 2200 1,815 1,815 1,815 1,815 0 7,260 33 33 33 33 0 132Length boards, tapes 330 330 330 330 0 1,320 6 6 6 6 0 24

Bicycles, revolving fund basis 750 0 0 0 0 750 14 0 0 0 0 14Motorcycle @150,000 ea. 20 0 1,500 1,500 0 0 3,000 0 27 27 0 0 55Storage cabinet - drugs/suppl

5,000 ea. 2000 5,000 5,000 0 0 10,000 0 91 91 0 0 182Sub-total Equipment 2,895 8,645 8,645 2,145 0 22,330 53 157 157 39 0 406

Total Investment Cost 7,125 24,327 21,822 14,827 12,682 74,283 130 442 397 270 231 1,351

IL Recurrent CostA. Personnel

Health Supervisor/Coord@Kshl65,000 20 3,300 3,300 3,300 3,300 3,300 16,500 60 60 60 60 60 300

CHN Aide Year 2 Recruit 0 3,600 2,700 1,800 900 9,000 0 65 49 33 16 164

CHN Aide Year 3 Recruit 0 0 3,600 2,700 1,800 8,100 0 0 65 49 33 147

CHN Aide Year 4 Recruit 0 0 0 3,600 2,700 6,300 0 0 0 65 49 115

CHN Aide Year 5 Recruit 0 0 0 0 3,600 3,600 0 0 0 0 65 65

Sub-total Personnel 3,300 6,900 9,600 11,400 12,300 43,500 60 125 175 207 224 791

Annex HPage 6 of 12

Table 4 Health and Nutrition Component (cont.)

II. Recurrent Cost (continued) 1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

B. Drugs and Supplies 0 0 0 0 0 0

Vitamin A caps 0 500 1,000 1,500 2,000 5,000 0 9 18 27 36 91

Iron/folate caps 0 1,500 3,000 4,500 6,000 15,000 0 27 55 82 109 273

ORS packet 0 1,500 3,000 4,500 6,000 15,000 0 27 55 82 109 273

First aid supplies 0 2,200 2,200 2,200 2,200 8,800 0 40 40 40 40 160

Mabelndazol 0 158 315 472 630 1,575 0 3 6 9 11 29

Praziquantel 0 180 360 540 720 1,800 0 3 7 10 13 33

Chloroquine 800 pks 0 16 16 16 16 64 0 0 0 0 0 1

Iodine caps 800 pks 0 3,000 3,000 3,000 3,000 12,000 0 55 55 55 55 218

Sub-Total Drugs and Supplies 0 9,054 12,891 16,728 20,566 59,239 0 165 234 304 374 1,077

C. Health/Nutrition IECMaterials development 6,500 6,500 3,250 3,250 0 19,500 118 118 59 59 0 355

Materials production/distribution 10,000 15,000 25,000 0 50,000 0 182 273 455 0 909

Sub-total IEC 6,500 16,500 18,250 28,250 0 69,500 118 300 332 514 0 1,264

Total Recurrent Cost 9,800 32,454 40,741 56,378 32,866 172,239 178 590 741 i,025 598 3,132

Total Cost - Health/Nutrition Comp. 16,925 56,781 62,563 71,205 45,548 246,522 308 1,032 1,138 1,295 828 4,482

Annex HPage 7 of 12

Table 5 Community Grants Component(KSh '000) (US S '000)

1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

I. Investment CostCommunity Grants 55,000 55,000 55,000 55,000 220,000 1,000 1,000 1,000 1,000 4,000

II. Recurrent CostGrants Monitoring/Operating 11,000 11,000 11,000 11,000 11,000 55,000 200 200 200 200 200 1,000

Total Cost 11,000 66,000 66,000 66,000 66,000 275,000 200 1,200 1,200 1,200 1,200 5,000

Annex HPage 8 of 12

Table 6 Transitions from Pre-primary to Primary Schooling Component(KSh '000) (US $ '000)

1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

L. Investment Cost

A. Curriculum Development 1,375 1,375 25

B. Materials Dev/Production 2,750 5,500 8,250 11,000 27,500 50 100 150 200 500

C. Teachers' Training 2,750 2,750 2,750 2,750 11,000 50 50 50 50 200

D. Training of Trainers 550 550 550 550 2,200 10 10 10 10 40

II. Recurrent CostExam Inspector (2) 325 325 325 325 325 1,625 6 6 6 6 6 30

Inspector/Registration (1) 163 163 163 163 163 815 3 3 3 3 3 15

Total Cost 1,863 6,538 9,288 12,038 14,788 44,515 34 119 169 219 269 809

Annex HPage 9 of 12

Table 7 Institutional Strengthening Component(KSh '000) (US$ '000)

New BasePositions Salary 1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

L Recurrent CostA. Salaries

1. MOE Preschool SectionProject Coordinator 203 203 203 203 203 203 1,015 4 4 4 4 4 18Deputy Head Section 188 188 188 188 188 188 941 3 3 3 3 3 17

M/EDataAnalyst 1 141 141 141 141 141 141 704 3 3 3 3 3 13

MlE Data Entry 123 123 123 123 123 123 616 2 2 2 2 2 11

Health/Nutrition Coord 1 138 138 138 138 138 138 690 3 3 3 3 3 13

Training Coord 138 138 138 138 138 138 690 3 3 3 3 3 13

CommunityDev. Coord. 1 138 138 138 138 138 138 690 3 3 3 3 3 13

Supplies Officer 123 123 123 123 123 123 616 2 2 2 2 2 11Supplies Clerk 86 86 86 86 86 86 430 2 2 2 2 2 8

Accountant 1 123 123 123 123 123 123 615 2 2 2 2 2 11

Accounts Clerk 1 99 99 99 99 99 99 495 2 2 2 2 2 9

Typist (2) 170 170 170 170 170 170 850 3 3 3 3 3 15Drivers (2) 1 148 148 148 148 148 148 740 3 3 3 3 3 13

Office Attendant (2) 1 98 98 98 98 98 98 490 2 2 2 2 2 9

Sub-total Preschool Section 9,582 174

2. NACECEProgram Coordinator 223 223 223 223 223 223 1,338 4 4 4 4 4 24

Dept. Program Coordinator 203 203 203 203 203 203 1,218 4 4 4 4 4 22Dept Training Off 185 185 185 185 185 185 1,110 3 3 3 3 3 20

DeptCurriculumOff 185 185 185 185 185 185 1,110 3 3 3 3 3 20

Dept Comm Educ Off 185 185 185 185 185 185 1,110 3 3 3 3 3 20

Dept Human Dev. Off 185 185 185 185 185 185 1,110 3 3 3 3 3 20

Dept Research Eval Off 185 185 185 185 185 185 1,110 3 3 3 3 3 20Dept Resource Dev Mgmt Off 185 185 185 185 185 185 1,110 3 3 3 3 3 20Accountant (1) 121 121 121 121 121 121 726 2 2 2 2 2 13

Typist/Clerk (13) 1,255 1,255 1,255 1,255 1,255 1,255 7,530 23 23 23 23 23 137

Office Attendant (4) 295 295 295 295 295 295 1,770 5 5 5 5 5 32

Annex HPage 10 of 12

Table 7 Institutional Strengthening Component (cont.)(KSh '000) (US$ '000)

New Base2. NACECE (cont.) Positions Salary 1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

Technician (4) 485 485 485 485 485 485 2,910 9 9 9 9 9 53

Resource Assistant (3) 300 300 300 300 300 300 1,800 5 5 5 5 5 33

Driver (6) 507 507 507 507 507 507 3,042 9 9 9 9 9 55

Sub-total NACECE 26,994 491

3. InspectorateSection Head 185 185 185 185 185 185 1,110 3 3 3 3 3 20

Inspection/Registration 325 325 325 325 325 325 1,950 6 6 6 6 6 35

Inspector M&E (2) 1 325 325 325 325 325 325 1,950 6 6 6 6 6 35

Typists (2) 169 169 169 169 169 169 1,014 3 3 3 3 3 18

Clerks (2) 169 169 169 169 169 169 1,014 3 3 3 3 3 18

Driver (2) 148 148 148 148 148 148 888 3 3 3 3 3 16

Office Attendant (1) 49 49 49 49 49 49 294 1 1 1 1 1 5

Sub-total Inspectorate 8,220 2,139 2,140 2,141 2,142 2,143 149

Existing ProposedEstab. Estab. Unit Cost 1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

4. DICECEPrincipal Lecturer 5 5 200 1,000 1,000 1,000 1,000 1,000 5,000 18 18 18 18 18 91

Senior Lecturer 16 60 170 5,270 6,630 7,820 9,010 10,200 38,930 96 121 142 164 185 708

Lecturer 44 85 165 10,725 11,550 12,375 13,200 14,025 61,875 195 210 225 240 255 1,125

Asst Lecturer 162 187 152 28,424 28,424 28,424 28,424 28,424 142,120 517 517 517 517 517 2,584

Clerk 57 57 88 5,016 5,016 5,061 5,061 5,061 25,215 91 91 92 92 92 458

Drivers 57 57 77 4,389 4,389 4,389 4,389 4,389 21,945 80 80 80 80 80 399

Sub-total DICECE 54,824 57,009 59,069 61,084 63,099 295,085 997 1,037 1,074 1,111 1,147 5,365

A. Total Salaries (National and District) 339,881 6,180

B. Vehicle Maintenance/Operating Expenses 1,994 2,073 2,148 2,221 2,295

C. Operating/Maintenance Cost 5,400 7,300 7,300 7,300 7,300 34,600 98 133 133 133 133 629


Table 7 Institutional Strengthening Component (cont.)

II. Investment Cost Units Unit Cost 1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

Vehicles4-wheel drive 40 1,600 48,000 16,000 64,000 873 291 1,164

Motorcycle 60 150 6,000 3,000 9,000 109 55 164

Bicycle 180 7 630 630 1,260 11 11 23

Jikos 232 2 232 232 464 4 4 8

Fridge 29 60 900 840 1,740 16 15 32

Cooking utensils 87 55 2,393 2,393 4,786 44 44 87

Dining utensils 29 20 290 290 580 5 5 11

Circular saw 29 50 725 725 1,450 13 13 26

Sanding machine 29 90 1,305 1,305 2,610 24 24 47

Drilling machine 29 60 870 870 1,740 16 16 32

Vice engineering 29 10 145 145 290 3 3 5

Wood vice 29 8 116 116 232 2 2 4

Embrail 25 kg 29 8 116 116 232 2 2 4

Sharpening machine 29 6 87 87 174 2 2 3

Assortedcarpentrytools 29 40 580 580 1,160 11 11 21

Shear machine 29 60 870 870 1,740 16 16 32

Resource materials 60 110 3,300 3300 6,600 60 60 120

Expendable supplies 29 275 3,988 3998 7,986 73 73 145

Total Equipment 70,546 35,497 106,043 1,283 645 1,928

Total Cost--Institutional Strengthening 480,524 8,737

Annual Total 5,513 4,991 4,421 4,496 4,570


Table 8 Monitoring and Evaluation(Ksh '000) (US $ °000)

I. Investment Cost Unit Unit Cost 1997 1998 1999 2000 2001 Total 1997 1998 1999 2000 2001 Total

Computers (incl software) 30 176 3,520 1,760 5,280 64 32 96Printers 30 138 2,760 1,760 4,520 50 32 82Furniture 30 6 120 60 180 2 1 3Printing of monitoring registers 550 550 550 550 550 2,750 10 10 10 10 10 50Staff training 500 500 500 500 500 2,500 9 9 9 9 9 45

Baseline survey 4,125 4,125 75 75Midterm evaluation survey 5,500 5,500 100 100

Post-evaluation survey 5,500 5,500 100 100

Data analysis 2,000 2,000 2,000 6,000 36 36 36 109

Publications/Dissemination 1,000 1,000 1,000 3,000 18 18 55

Special Studies 3,000 3,000 3,000 3,000 12,000 55 55 55 55 218

Total Investment Cost 51,355 934

II. Recurrent CostComputer Maintenance 628 980 980 980 980 4,548 11 18 18 18 18 83

Total Cost 14,203 9,610 12,530 6,030 13,530 55,903 258 157 228 110 246 1,016

Annex IPage I of 2

OUTLINE OF PROJECT IMPLEMENTATION MANUAL

Chapter 1 Project Description

1.1 Project Objectives1.2 Description of Components1.3 Financing and Disbursement Plan

Chapter 2 Project Management and Implementation

2.1 Organizational Structure2.2 National ECD Implementation Committee

CompositionTerms of ReferenceCalendar of Meetings

2.3 Ministry of Education Pre-School SectionEstablishmentJob DescriptionsRecruitment Procedures and Timetable

2.4 NACECEEstablishmentJob DescriptionsRecruitment Procedures and Timetable

2.5 District ECD Implementation CommitteesCompositionTerms of Reference

2.6 DICECEEstablishmentJob DescriptionsWork Load/Work Routines

2.7 Pre-school CommitteesCompositionTerms of Reference

Chapter 3 Guidelines for Collaborating Agencies

3.1 Criteria3.2 Draft MOU/Contract3.3 Procedure for Receipt, Utilization, and Accounting of Project Funds

Chapter 4 Training

4.1 Curriculum Development4.2 Materials Development4.3 Training of Teachers4.4 Training of Trainers4.5 Staff Development4.6 Other Training4.7 Annual Training Plan 1996/97-2000/01

Annex IPage 2 of 2

Chapter 5 Community Mobilization

5.1 National Project Launch Workshop5.2 District Project Orientation Sessions5.3 Community Mobilization5.4 PRA Workshops5.5 Preparation and Implementation of IEC Strategy

Chapter 6 Health and Nutrition Pilot

6.1 Targeting Criteria and Selection of Districts6.2 Component Implementation Plan

NGO Model - Activities, Organization and Management, WorkRoutines, Supervision and Training, Monitoring, Audits andAccountsHybrid Model - Activities, Organization and Management, WorkRoutines, Supervision and Training, Monitoring, Audits andAccounts

Chapter 7 Community Grants Pilot

7.1 Targeting Criteria and Selection of Districts7.2 Component Implementation Plan

NGO Model - Activities, Organization and Management, WorkRoutines, Supervision and Training, Monitoring, Audits andAccountsHybrid Model - Activities, Organization and Management, WorkRoutines, Supervision and Training, Monitoring, Audits andAccounts

Chapter 8 Pre-School to Primary School Transition Pilot

8.1 Curriculum Development8.2 Materials Development8.3 Training Plan

Chapter 9 Monitoring and Evaluation

9.1 Project MonitoringObjectivesMonitoring FormatsFlow of Information and Feedback LoopsData Analysis

9.2 EvaluationHousehold SurveySurvey of ECD CentersClient Consultation

9.3 Special Studies

Chapter 10 Audits and Accounts

Chapter 11 Procurement

Annex JPage I of 8

COST-BENEFIT ANALYSIS

Introduction

1. Investment in ECD is one of the instruments that the Kenyan government hasidentified to a achieve the World Education Summit goals of (a) universal primaryeducation by the year 2000, (b) completion of primary education by at least 80% by theyear 2000. The proposed project will improve the quality of the present ECD centers inKenya though six related activities that will cover 1.2 million children by the 5th year ofthe project. The first few years of life are crucial in the development of human capital.The development of the brain is almost fully completed during this period and theadverse consequences of any nutritional or cognitive developmental deficiencies arelifelong. Parents are the primary caregivers in early childhood. Improving parentingskills and providing key information on a child's developmental needs are widelyrecognized as effective mechanisms for improving child development outcomes.Successful Bank projects that have incorporated this approach include the Tamil NaduIntegrated Nutrition Project which succeeded in reducing severe malnutrition in infantsby 50% and a number of ECD projects in Latin America, iiotably Colombia, Chile andMexico. The quality of the ECD programs is another important determinant of itseventual impact on beneficiaries. Teacher training and support and parental involvementare important ingredients of high quality programs. Teacher-pupil ratios and learningmaterials also affect quality. The project will significantly improve the quality of ECDservices in Kenya.

Project Benefits

2. The Kenya Poverty Assessment Report (Report No. 13152-KE) shows thatprimary school enrollment in Kenya is high by African standards, although still far shortof universal primary education. Enrollment at the primary level attained in 1994 is at73% (net enrollment), and 80% (gross enrollment). However, completion rates in recentyears had been declining particularly amongst low income households. The most recentdata from Kenya's Welfare Monitoring System survey of 1994 indicates that of thosewho enrolled in standard 1 in 1986, only 46% completed standard 8 (in 1993). Thisimplies a drop-out rate of more than fifty percent. In addition, rates of grade repetition inprimary school are high. The reduction in the level of wastage in the primary schoolsystem in Kenya is expected to be one of the main contributions of the ECD project. Thehigh drop-out and repetition rates have been due to many school related factors such ashigh pupil-teacher ratios, inadequate textbook provision, and poor classroomenvironment. These may also be related to poor preparation of the child for schooling.Available evidence suggests that dropout rates are highest between grades I and 2probably due to the inability of the child to adapt to the difficult transition from home tothe school environment. Experience in primary schools in Latin American countries, inthe United States and in Turkey indicate that the drop-out and repetition rates can bereduced by preschool programs which prepare the child for schooling--socially throughsocial stimulation and physically through better health and nutrition.

Annex JPage 2 of 8

3. The expected benefits from ECD project include:

(a) a reduction in the number of repeaters and drop-outs in the early primarygrades which translates into fiscal savings to the government, and financialsavings to parents who pay for primary school fees, uniform andtransportation;

(b incremental lifetime earnings for children reached by the program;

(c) improved nutritionAhealth outcomes for children reached through thenutrition interventions within the ECD program;

(d) incremental earnings of the teachers trained under the program because ofhigher or more regular contributions from parents;

(e) incremental earnings of parents (mothers especially) as a result ofreleasing their time for economic activities; and

(f) increase in schooling participation for young girls, who would be releasedfrom usual chores of child-minding;

4. For purposes of the present analysis, benefit (a) and benefit (b) are calculated andincluded in the benefit streams from the project. Benefits (c) to (f) will be described onlyin qualitative terms.

5. Repetition and Drop-out Rates. Table 1 clearly indicates very low retentionrates in the primary school system in Kenya. Roughly 43% of the school entrants in 1986completed the primary schooling cycle in 1993. This implies that about 57% of allchildren entering the system are dropping out.

6. The economic consequences of this type of wastage at the primary school levelare significant. Firstly, each year of grade repetition implies that an extra year'sexpenditures are committed by the government and by parents. Thus, a program thatreduces repetition means savings for the government and for parents. The governmentspends about $38 per child per year at the primary level, while households spend about$17 per child for fees, books, uniforms and harambee contributions. (Kenya PublicExpenditure Review, WB 1994). The annual savings for the government and householdswould then total roughly $55 per child per year.

7. The ECD project is intended to improve the quality of primary school entrants, toenable them to complete the primary school cycle on time. Thus, each year that a childthat progresses to complete the primary school cycle without repetition saves thegovernment and parents about $55 per child. An analysis of a student progression flowwas carried out to test the sensitivity of the benefits from lower repetition and drop-outrates. In order to capture the economic benefits arising from the ECD project, a scenario"with the project" is compared to a scenario "without the project". The economic benefitfrom the project is the difference between the two scenarios.

Annex JPage 3 of 8

8. Incremental Lifetime Earnings. Most of the literature on the economic benefitsfrom ECD programs focused on the incremental earnings for those who were reached bypreschool programs. Longitudinal studies indicate that each $1 invested in the programhad economic returns of $7, based on higher earnings of those who attended the program.

9. Estimates of the likely incremental earnings as a result of the Kenya ECD projectis based on an analysis of household data (Deolalikar, 1995) from the Welfare MonitoringSurvey of 1994, which compares the likely marginal increase in wages of a person with,say, preschool experience compared to someone with no education at all. Wageequations were estimated holding individual characteristics (sex, age, etc.) constant. Theresults indicate that an individual who completed preprimary schooling earns about 66%more at the margin in daily wages compared to those with no education. Likewise theestimates show that those with some primary school eam 210% more than those with pre-primary schooling, at the margin. Table 2 shows that the marginal increase in wagesincreases consistently as we move from some primary to primary complete and so on.

10. The results from the household surveys were used in calculating the futureearnings stream, discounted to the present. These benefits accrue at about the 15th yearfrom start of the project--or at the time that this cohort joins the labor force.

11. A separate set of benefits not quantified in the present analysis is the incrementallifetime earnings of those children who would likely complete primary, secondary ortertiary schooling as a result of the earlier attendance in ECD programs. Table 3 indicatesthe likely earnings differentials by different schooling levels attained.

Other Economic Benefits from Early Child Development Interventions (NotQuantified)

There are other economic benefits expected from the ECD project which are difficult toquantify, and are therefore not included in the calculation of the project's benefit streams.These benefits include:

Nutrition/Health Benefits. These benefits would result from the inclusion ofnutrition/health inputs in the ECD program. The economic benefits from nutritioninterventions is defined in terms, also of the incremental lifetime earnings of those whosenutrition have been improved. Studies indicate better school performnance, higher lifetimeearnings, for those persons who had good early nutrition.

Release of Parents Time for Economic Activities. In urban areas and in plantationareas in rural regions, a proportion of their time is released for productive work with thepromotion of ECD projects. For example, women who work in tea and coffee plantationswould benefit from leaving preschool children in ECD centers during their workinghours. In many parts of Kenya, the use of traditional child care had been decliningparticularly in the urban areas where single mothers are increasing and in rural areaswhere families are now more nuclear than extended. The high opportunity cost of time

Annex JPage 4 of 8

of women of reproductive age in Kenya has been observed from household data (WelfareMonitoring Survey 1994).

Release of Young Girls for Schooling. The other effect from the investment is theimproved schooling participation of older girls. In many instances, the eldest daughterhandles child care as surrogate to the mother who has joined the labor force. Data fromthe Kenya Welfare Monitoring Survey showed that school enrollment for girls fell by50% when there was a pre-school child in the household.

Sensitivity Analysis and Switching Values

Two crucial assumptions on the benefits streams of the project were subjected tosensitivity analyses to test how the economic viability of the project changes undervarious scenarios. The two most important assumptions relate to (1) the reduction ratesin the drop-out and repetition and (2) incremental lifetime earnings.

Switching values for the repetition and drop-out rates were used to see what happens tothe economic rates of return for various levels of school repetition and drop-out rates.The basic run presented in Table 4 is based on a conservative assumption of 7 percentagepoint improvement in the completion rates in the primary schools--that is, expectation ofimprovement from the present level of primary school completion of 43% to 50%. Thesensitivity analysis indicates that the break-even point --or the percentage improvementin completion rate required to bring the present value of benefits equal to the investmentcost of the project---is only 4 percentage points. This indicates that even smallimprovements in the completion rates as a result of the ECD project would already makethe project economically viable. This is due largely to the cost to the government and toparents of sending children to the primary schools. On the other hand, if the projectincreases the completion rates from 7 percentage points to 14 percentage points, theeconomic rates of return of the project increases from 32% to about 49 %.

A second simulation tested alternative assumptions on increases in lifetime earnings ofchildren reached by the project. Since the economy is very difficult to predict, asimulation using switching values for future earnings was applied. Using a "noincrement" assumption for future earnings, the analysis indicates that the economic rateof return from the project declines to about 26% from 32% in the 'with incrementalearnings' assumption. This represents a minimal impact on the returns from the project.The reason is that the most of these returns accrue much later - on the 16th year (or 15years after children complete preschools).

A further simulation was done to test the incremental lifetime earning effects from theefficiency gained in primary schooling--that is, better progression into higher levels ofschooling and thus, increase the lifetime earnings. Recall that the base assumptions onbenefits had calculated only the fiscal savings from lower drop-outs and repetition. If theprogression rate in primary schooling is indeed realized, future earnings of those whocompleted higher levels of schooling would likely increase by a large factor as seen inTables 2 Wage Regression) and Table 3 Mean Wage By Schooling Level. Using the

Annex JPage 5 of 8

estimates from the wage differentials at various levels of schooling, incremental earningsfrom improved progression rate could be calculated. The sensitivity analysis using suchadditional project benefits from a progression rate of 14% would result in a substantialimprovement in the economic rate of return to about 42%.

Conclusions

The overall evaluation given in a summary table in Table 4 indicates that the Kenya ECDproject is a highly viable project from the economic point of view. It is estimated that $1invested in the project would likely yield an equivalent of about $5 returns in presentvalue terms. The economic rate of return is about 33%, which is higher than manyprojects of this nature.

There are second-round and indirect benefits from the project which are difficult toquantify and are excluded from the present calculations. Nutrition and health benefitsfrom the nutrition components of the project would provide lifelong impact onproductivity. It is likely that growth monitoring, and nutrition and health education willimprove the children's growth and future earnings potential. The ECD program will alsoease the burden from the elder siblings who do child care tasks--which will thereforeencourage schooling participation especially for girls. For mothers, it is likely that theirtime for child care would be released for economically productive activities, and wouldthus, increase household incomes. Likewise, benefits can be expected from capacitybuilding of community organizations, especially the preschool committees. Morepreschool teachers would be trained in new skills, and therefore would enhance theirproductivity and incomes.

Annex JPage 6 of 8

Table 1 Kenya: Primary School Retention Rates of School Entrantsin 1984, 1985, 1986 (Percentage)

Entrants in 1984 Entrants in 1985 Entrants in 1986

1984 Male 100.0Female 100.0Total 100.0

1985 Male 81.2 100.0Female 81.0 100.0Total 81.1 100.0

1986 Male 75.5 85.4 100.0Female 76.2 84.1 100.0Total 75.9 84.8 100.0






1992 Male 52.6 65.4Female 48.3 68.9Total 50.5 67.1

1993 Male 44.5Female 42.2Total 43.4

Source: Ministry of Education and Central Bureau of Statistics (1994), EconomicSurvey of Kenya, Nairobi.

Annex JPage 7 of 8

Table 2 Mean Wage Rates by Level of Schooling in Kenya (1994)

Highest Level of Education Mean Daily Wage Standard Deviation No. of Individuals(Kenyan Shillings)

No schooling 89.21 158.80 18,100Pre primary schooling 107.86 115.18 33,390Some primary school 176.63 1085.61 1,812,677Primary school completed 296.16 3215.82 952,876Some secondary school 224.88 922.69 745,114Secondary school completed 362.88 741.64 811,658Certificate 507.97 992.50 186,182

University 2164.87 3365.06 84,161All Individuals 289.93 1769.04 4,644,159

Source of Basic Data: CBS (1994). Welfare Monitoring Survey, Nairobi, Kenya.

Table 3 Project Benefits and Costs 1996 (US$ millions)

Present Value of Flows Fiscal ImpactEconomic Analysis

Taxes Subsidies

Benefits

Total Benefits from: 115.22 6.83. Fiscal Savings from Lower Primary

School Repetition, Household Savingsfrom Lower Primary School Repetition

* Govt Fiscal Savings from Lower Drop-Outs in Grades I and 2

* Incremental Income

Costs20.85 25.56

Total Project cost:(Including: Teachers' Training, CommunityCapacity Building, Health and Nutrition,Community Financing, and M&E)

Net Present Value 94.37Internal Rate of Return 32.8%Overall Risk: Probability that NPV <0 minimal

Annex JPage 8 of 8

Main Assumptions:

Discount Rate: 12%

Real Exchange Rate Constant 1995 prices

Taxes would be generated from incremental lifetime earnings of beneficiaries.

Nature of Benefits

Government fiscal savings from lower drop-out and repetition rates at the primary level.

Household savings from lower drop-out and repetition rates at the primary level.

Incremental lifetime earnings for beneficiaries.

Not quantified: Incremental lifetime earnings from better nutrition.

Incremental earnings of mothers released for economic activities.

Increased schooling participation of girls.

Switching Values

Reduction in repetition/drop-out would have to be 50% lower for NPV to be negative.

Reducing incremental lifetime earnings to zero will not make NPV negative.

Annex KPage I of I

KENYA EARLY CHILDHOOD DEVELOPMENT PROJECT

ESTIMATED DISBURSEMENTS(US$ millions)

Year Quarter Projected Cumulative

1997 Quarter 4 0.80 0.80

1998 Quarter 1 0.55 1.35Quarter 2 0.55 1.90Quarter 3 0.55 2.45Quarter 4 0.55 3.00

1999 Quarter I 1.10 4.10Quarter 2 1.10 5.20Quarter 3 1.10 6.30Quarter 4 1.10 7.40




2003 Quarter 1 1.94 27.80

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