world bank document...2005/04/25 · education, improving the quality and relevance of schooling,...
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Document of The World Bank
FOR OFFICIAL USE ONLY
Report No: 29921-KH
PROJECT APPRAISAL DOCUMENT
ON A
PROPOSED CREDIT
IN THE AMOUNT OF SDR 5.3 MILLION (US$S.O MILLION EQUIVALENT)
AND A PROPOSED IDA GRANT OF SDR 13.1 MILLION (US$20.0 MILLION EQUIVALENT)
TO THE
KINGDOM OF CAMBODIA
FOR AN
EDUCATION SECTOR SUPPORT PROJECT
March 29, 2005
Human Development Sector Unit East Asia and Pacific Region
This document has a restricted distribution and may be used by recipients only in the performance of their official duties. I t s contents may not otherwise be disclosed without World Bank authorization.
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CURRENCY EQUIVALENTS (Exchange Rate Effective end January 2005)
Currency Unit = Rie l Riel3835 = US$1
US$1 = Rie l 0.00026
ESDP2 ESP ESSP EQIP FERP
FISCAL YEAR January 1 - December 31
Development Second Education Sector Development Program PAP Priority Action Program Education Strategic Plan PCN Project Concept Note Education Sector Support Program PER Public Expenditure Review Education Quality Improvement Project PFR Project Financial Reports Flood Emergency Rehabilitation Project PHRD Japan Policy and Human Resources Development
ABBREVIATIONS AND ACRONYMS
ISDS JICA
Procurement Integrated Safeguards Data Sheet JaDan Intemational Co-oDeration Acencv 1 JXO T Jnexnlnded Ordinance
USAID United States Agency for Intemational Development
JFPR 1 Japan Fund for Poverty Reduction I vso I Voluntary Service Overseas JSDF 1 Japan Social Development Fund
Vice President: Jemal-ud-din Kassum Country Managermirector: Ian C. Porter
Sector Director: Emmanuel Y. Jimenez Task Team Leader: Luis Benveniste
FOR OFFICIAL USE ONLY
CAMBODIA: Education Sector Support Project CONTENTS
Page STRATEGIC CONTEXT AND RATIONALE ................................................................. 1 A .
1 . 2 .
3 .
Country and sector issues .................................................................................................... 1
Rationale for World Bank involvement .............................................................................. 1
Higher level objectives to which the project contributes .................................................... 2
PROJECT DESCRIPTION ................................................................................................. 2 Lending instrument ............................................................................................................. 2
Project development objective and key indicators .............................................................. 2
Project components ............................................................................................................. 3
B . 1 . 2 . 3 . 4 . 5 .
Lessons learned and reflected in the project design ............................................................ 6
Alternatives considered and reasons for rejection .............................................................. 7
C . IMPLEMENTATION .......................................................................................................... 8 1 . 2 . 3 . 4 . Sustainability ..................................................................................................................... 11
5 . Critical risks and possible controversial aspects ............................................................... 12
6 . Loadcredit conditions and covenants ............................................................................... 13
APPRAISAL SUMMARY ................................................................................................. 14 1 . Economic and financial analyses ...................................................................................... 14
2 . Technical ........................................................................................................................... 16
3 . Fiduciary ........................................................................................................................... 16
4 . Social ................................................................................................................................. 17 5 . Environment ...................................................................................................................... 18
6 . 7 .
Partnership arrangements .................................................................................................... 8
Institutional and implementation arrangements .................................................................. 9
Monitoring and evaluation o f outcomes/results ................................................................ 10 . .
D .
Safeguard policies ............................................................................................................. 18
Policy Exceptions and Readiness ...................................................................................... 19
This document has a restricted distribution and may be used by recipients only in the performance o f their official duties . I t s contents may not otherwise be disclosed without World Bank authorization .
Annex 1: Country and Sector Background .............................................................................. 20 Annex 2: Major Related Projects Financed by the World Bank and other Agencies .......... 25
Annex 3: Results Framework and Monitoring ........................................................................ 26
Annex 4: Detailed Project Description ...................................................................................... 30
Annex 5: Project Costs ............................................................................................................... 37
Annex 6: Implementation Arrangements ................................................................................. 38 Annex 7: Financial Management and Disbursement Arrangements ..................................... 40
Annex 8: Procurement ................................................................................................................ 48
Annex 9: Economic and Financial Analysis ............................................................................. 58
Annex 10: Safeguard Policy Issues ............................................................................................ 69
Annex 11: Mainstreaming Gender ............................................................................................ 71
Annex 12: Ethnic Minorities and Education Goals ................................................................. 74
Annex 13: Promoting Good Governance .................................................................................. 76
Annex 14: Indicative Education Sector Common Policy Action Matrix ............................... 78
Annex 15: School Monitoring Form .......................................................................................... 83
Annex 16: Project Preparation and Supervision ................................................................... 102
Annex 17: Documents in the Project F i le ............................................................................... 104
Annex 18: Statement of Loans and Credits ............................................................................ 109
Annex 19: Country at a Glance ............................................................................................... 111
MAP(S) IBRD 33381
CAMBODIA
INTERNATIONAL DEVELOPMENT 6.22 1.78
ISH-EDUCATION SECTOR SUPPORT PROJECT
8.00
PROJECT APPRAISAL DOCUMENT
EAST ASIA AND PACIFIC
EASHD
ASSOCIATION IDA GRANT FOR POOREST COUNTRY Total:
Date: March 29, 2005 Team Leader: Luis Benveniste Country Director: Ian C. Porter Sectors: Primary education (25%); Secondary Sector Director: Emmanuel Y. Jimenez education (65%); Higher Education (10%)
Themes: Education for a l l (P) Project ID: PO70668 Environmental screening category: Not
Required Lending Instrument: Specific Investment Loan Safeguard screening category: Limited impact ( S L )
[ ] Loan [XI Credit [XI Grant [ ] Guarantee [ ] Other:
13.52 6.48 20.00
21.83 8.26 30.09
For Loans/Credits/Others: Total Bank financing (US$m.): US$ 8.00 (Credit)
U S $20.00 (Grant) Pronosed terms:
Borrower: Kingdom of Cambodia
Responsible Agency: Ministry of Education, Youth and Sports Address: 80 Preah Norodom Blvd., Phnom Penh, Cambodia
Contact Person: H.E. Pok Than, Secretary of State Telephone : 855-23-217-250
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Annual Cumulative Project implementation period: Start: July 2, 2005 End: June 30, 2010 Expected effectiveness date: August 11, 2005 Expected closing date: December 31, 2010 Does the project depart from the CAS in content or other significant respects? Does the project require any exceptions from Bank policies?
[ ]Yes [XI N o
[ ]Yes [XINO [ ]Yes [ IN0 [ ]Yes [ IN0
Have these been approved b y Bank management? I s approval for any policy exception sought from the Board?
[XIYes [ ] N o Does the project include any critical r isks rated “substantial” or “high”?
2.0 5.0 6.0 6.0 5.5 3.5 2.0 7.0 13.0 19.0 24.5 28.00
Does the project meet the Regional criteria for readiness for implementation? Project development objective: To assist the Borrower to implement i t s Education Sector Support Program goals to expand access to educational services b y addressing supply, demand, quality and efficiency constraints, wi th special focus on the poor and underserved communes. Project description: CESSP w i l l strive to reach the proposed development objectives through a two-pronged strategy. First, the project w i l l seek to enable equitable access to education through a balanced m ix o f both supply- and demand-side interventions. Second, i t w i l l promote decentralized mechanisms to nurture educational quality enhancements. The former strategy w i l l involve: (a) school construction in areas with incomplete primary or no lower secondary schools as well as (b) reduction of access barriers through targeted scholarships to encourage disadvantaged children to attend school. The latter w i l l entail: (a) the strengthening of decentralized quality education service delivery and (b) the development o f a national assessment monitoring system. In addition, the project w i l l support the implementation of emerging needs under the ESSP, to be agreed with IDA during project implementation.
[XIYes [ ] N o
Which safeguard policies are triggered, if any? None
Significant, non-standard conditions, if any, for: None
Board presentation:
I
Loadcredit effectiveness:
Covenants applicable to project implementation:
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A. STRATEGIC CONTEXT AND RATIONALE 1. Country and sector issues The National Poverty Reduction Strategy (NPRS) and the Education Strategic Plan 2004-08 (ESP) have placed an emphasis on the achievement of universal access to nine years o f high quality basic education by 2015 and the promotion of equity in educational opportunities.
There have been significant improvements in the past five years in the education sector in Cambodia, particularly in terms of primary net enrollment gains, the introduction of program based-budgeting and the development o f a sound pro-poor policy framework. But several challenges remain. The key issues are (a) disparities in education participation rates b y different regions, income groups and gender; (b) inefficiency and poor quality in education service delivery at primary, secondary and tertiary levels; (c) weak local management capacity; and (d) lack of reliability in education finance disbursements.
To achieve sector objectives, the Ministry of Education, Youth and Sport (MoEYS) has adopted a rolling Education Sector Support Program (ESSP), which identifies specific action areas. The ESSP i s annually reviewed jointly b y all education partners (Government, non-governmental organizations (NGOs) and international organizations), thus ensuring a sense o f commitment and ownership to educational change. The ESP and ESSP adopt a sector-wide approach to education planning and development and provide the overarching framework for the development and future implementation o f the Cambodia Education Sector Support Project (CESSP).
2. There i s extensive research evidence about the contributions o f the education sector to improvements in l iv ing standards, poverty alleviation, economic growth, public health and civic participation. As noted above, the Royal Government o f Cambodia (RGC) has developed a comprehensive sector strategy to address present challenges in education provision.
Rationale for W o r l d Bank involvement
The Wor ld Bank has built a comprehensive knowledge base on the Cambodian education sector through i t s support to the Education Quality Improvement Project (EQIP) and involvement in trust-funded education activities at the primary and higher education levels operating at both the central and grassroots levels.
The Wor ld Bank has been an active contributor to the ESP and ESSP review process, providing timely inputs to Government's own thinking on education reform priorities. I t has recently completed a comprehensive education review, Cambodia Basic Education Quality for All, which has served as an important analytical contribution for the recent ESPESSP and the development o f this project. All interventions have been developed in close partnership wi th the Ministry o f Education, Youth and Sports (MoEYS) as well as with other international organizations and NGOs working in Cambodia in the spirit o f a sector-wide approach.
In addition, the World Bank has participated in several cross-sectoral evaluations, co-financed b y several international partners, including an integrated fiduciary assessment and public expenditure review (PAPER) and a public expenditure tracking survey (PETS). The Bank's knowledge and experiences in the education sector can assist the Royal Government o f Cambodia to achieve i t s objectives and overall goals for the sector.
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3. The NPRS and ESP have espoused a rigorous agenda aimed at increasing access to basic education, improving the quality and relevance o f schooling, and enhancing decentralized management and efficiency o f educational services. The Cambodia Education Sector Support Project i s closely aligned with these goals. I t s main features include (i) assuring equitable access to educational services through the reduction of cost barriers to schooling and targeted facilities development; and (ii) improving the quality and efficiency o f services through greater decentralization of school management, enhanced teacher professional development, provision o f instructional materials and institutionalization of student performance monitoring.
Higher level objectives to which the project contributes
The project strives to strike an appropriate balance between supply- and demand-side interventions as well as foster a harmonious expansion o f the primary and lower secondary subsectors. Although designed as a traditional investment project, the activities included here are f i rmly anchored on an agreed-upon Common Policy Action Matrix.
The project i s fu l ly consistent wi th the World Bank Country Assistance Strategy (CAS) goals of strengthening Cambodia’s foundation for sustainable development and reducing poverty b y enhancing human capital. I t w i l l promote good governance b y encouraging community voice and parental participation, accountability for results, transparency in the management of resources and stakeholder feedback mechanisms.
B. PROJECT D E S C R I P T I O N 1. Lending instrument The Cambodia Education Sector Support Project i s a specific investment loan (SIL). The project espouses a broad, sector-wide approach to education planning and development with well- defined objectives, embedded within the NPRS, ESP and ESSP. The participatory and consultative approach with Government, c iv i l society and international partners throughout project development has ensured a sense o f commitment and project ownership. A strong emphasis on capacity building and institutional strengthening w i l l help achieve sustainable results.
2. The development objective o f the project i s to assist the Borrower to implement the ESSP goals to expand access to educational services by addressing supply, demand, quality and efficiency constraints, with special focus on the poor and undersewed communes.
Project development objective and key indicators
The project w i l l strive to achieve progress in key sector indicators that track student enrollment, progress in the schooling cycle and improvements in educational quality, including: grade 1 intake rate b y age, net enrollment rates, repetition and drop-out rates, gender parity, primary completion rate, transition rate f rom primary to lower secondary education, student achievement scores and student: teacher ratios. Wherever possible, data w i l l be disaggregated b y commune poverty level, gender and ethnic minorities to track project impact on vulnerable groups. Outcome indicators w i l l be harmonized with ESP sector performance milestones. The two main project indicators are:
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0 Improved access to education for poor and disadvantaged children as measured by an increase in net primary and lower secondary enrollment rates.’
0 Enhanced education quality service delivery as indicated b y overall improvements in student achievement scores in mathematics and Khmer for students in grades 3,6 and 9.
Changes in school effectiveness and teaching and learning practices w i l l be assessed through an impact evaluation study, comparing baseline to final outcome indicators.
3. Project components CESSP wi l l strive to reach the proposed development objectives through a two-pronged strategy. First, the project w i l l seek to enable equitable access to education through a balanced m ix of both supply- and demand-side interventions. Second, it w i l l promote decentralized mechanisms to nurture educational quality enhancements. The former strategy w i l l involve: (a) school construction in areas with incomplete primary or no lower secondary schools as well as (b) reduction of access barriers through targeted scholarships to encourage disadvantaged children to attend school. The latter w i l l entail: (a) the strengthening o f decentralized quality education service delivery and (b) the development o f a national assessment monitoring system.
The theory of change underpinning the project i s the following. First; both supply- and demand- side barriers to schooling access need to be lifted. Children must have schools available in their vicinity, and their participation must be supported through incentive schemes (“scholarships”) that can reduce the direct or opportunity costs of attendance. Coming to school, however, i s no guarantee that learning w i l l occur. The relevance and quality o f schooling must be promoted b y fostering a reflective process within schools to identify their challenges and develop improvement action plans. This process can be catalyzed through an institutional participatory framework that includes community members, parents, school staff, district supervisors and provincial officers. School development planning w i l l be complemented with professional development efforts to enhance principal and teacher technical capacity to deliver the academic program more effectively. An independent national assessment system w i l l monitor progress and provide specific feedback to educators and policymakers to guide the education system towards improved student participation and academic achievement outcomes, the ultimate objective of the project. The ESPESSP framework functions as an enabling environment that provides overall coherence to specific project interventions within a sector wide framework and nurtures the process o f educational change (see Annex 14 for the ESSP Indicative Education Sector Common Policy Action Matrix).
See Annex 3 for official ESP target figures. The statistics utilized throughout this Project Appraisal Document are based on official MoEYS EMIS data, as quoted in the ESP. However, i t ought to be noted that net enrollment rates are significantly and systematically lower in household surveys than in EMIS. In particular, enrollment in primary school i s close to universal according to EMIS but s t i l l far from i t according to household survey data. For example, for the school year 2003-04, the primary net enrollment rate was 90.1 percent according to EMIS but only 79.7 percent according to Cambodia Inter-Censal Population Survey (CIPS) data. These differences are not due to disparities in the corresponding age group population or the absolute numbers o f children attending each school level but to their age distribution. Students attending each school level are reported to be significantly older in household surveys than in EMIS.
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National Assessment I System Education Facilities
Expansion
Reduction of Access Barriers for Disadvantaged I Children nal
Project implementation w i l l strive to reach the most disadvantaged children (preferentially targeting girls, ethnic minority areas and c o m u n e s with high poverty incidence). Over the long term, the project w i l l benefit primary and lower secondary school children nationwide by strengthening the institutional and technical capacity for education quality improvement planning and administration. Sustainable and quality enhancing management, supervisory and pedagogical practices w i l l be promoted so as to foster greater efficiency and effectiveness in educational service delivery.
The project w i l l consist o f three components: (1) Enabling Equitable Access to Education, (2) Supporting Education Quality Improvements and (3) Assistance to the Education Sector Support Program (for a more detailed description see Annex 4).
Component 1: Enabling Equitable Access to Education (US$18.95 million) 1.1. Expanding educational facilities in poor and underserved areas (US$12.07 million). The proposed activity would support the ESSP 2004-08 Education Facilities Development Program providing lower secondary schools in communes without them, prioritizing communes with the highest poverty incidence levels. Where needed and cost-effective, the project w i l l also complete incomplete primary schools. This i s an actionable measure in the NPRS. C iv i l works w i l l include latrines and wells. Schools wi l l also be supplied with furniture, a basic set of educational materials, library books and relevant instructional equipment. Teachers and principals w i l l receive relevant professional development opportunities (see Component 2.1). Where appropriate, a community contracting approach to school construction w i l l be espoused. Facility construction targets w i l l be reviewed and adjusted annually.
1.2. Reducing access barriers for disadvantaged children (US$6.SS million). Increasing the number o f schools alone w i l l not suffice to expand education participation, particularly among the lowest poverty quintiles. Demand-side incentives have been widely recognized in recent
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years as a means to lower the direct and opportunity costs to education. The provision of scholarships to poor children-especially poor girls and ethnic minority children-is an actionable measure under the NPRS to foster universal basic education and i s operationalized in the ESSP 2004-08 under the Secondary Scholarships for the Poor Program. Schools w i l l be selected according to commune poverty incidence. Application forms and scoring procedures w i l l be based on the analysis o f household surveys in order to develop models that best identify children at risk o f dropping out. The scoring process w i l l be carried out by Local Management Committees (LMC) in close collaboration wi th intensive technical assistance in order to ensure accuracy and transparency in the selection process. The poorest children in each school w i l l be selected on the basis of an index developed to identify students at risk o f dropping out, providing greater weights for girls. In order to allow for the fact that poorer children might need a larger incentive to enroll in and complete schooling, scholarships w i l l be tiered. Children within each L M C who score higher on a Drop-out Risk index w i l l be funded at higher levels. A rigorous ex- ante evaluation design w i l l be set up to compare the differential impact o f scholarships across groups of students in order to optimize project configuration (including intended beneficiary groups, targeting mechanisms and scholarship size).
Component 2: Supporting Education Quality Improvements (US$5.27 million) 2.1. Strengthening decentralized quality education service delivery (US$4.62 million). The quality and efficiency of education service delivery at both the primary and lower secondary levels i s poor, stemming from scarce resourcing, insufficiently trained teachers and principals, inadequate professional development opportunities, deficient school performance monitoring systems and weak local capacity to take responsibility for school improvement at the facility, district and provincial levels. This component w i l l focus on strategic interventions around decentralized quality improvement in order to encourage right-age enrollment, foster promotion o f students in lower primary, increase retention of students in upper primary, foster transition to lower secondary education and ultimately enhance student learning.
Improvements in service delivery effectiveness and educational quality w i l l be achieved through activities to:
(a) Assist the development, implementation and monitoring of school improvement plans. Regular provincial/district/cluster level supervision w i l l support this process and facilitate demand-driven capacity building.
(b) Foster in-service training to improve the effectiveness o f teaching and learning in the classroom through “child friendly”2 methodologies. Principals wi l l receive leadership training.
Promote the recruitment of lowerhpper secondary graduates from disadvantaged provinces to Teacher Training Colleges (TTCs) and upgrading under qualified teachers during vacation periods in order to ensure an adequate supply o f locally-recruited teachers in rural and remote area schools.
The “child-friendly” schooling methodology was developed by UNICEF to promote a learning environment that i s protective of children, centered on the child’s own ability to understand and know, academically effective, well- organized and managed, involved with families and communities, inclusive, gender-sensitive and health-promoting.
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(d) Develop national teacher professional standards in order to set clearer learning-focused behavioral goals for teacher training programs and ultimately teachers.
(e) Encourage community mobilization for educational programs, more active commune participation in school governance, parental voice in school affairs and local accountability through the dissemination of information on school effectiveness.
These interventions are included in the ESSP 2004-08 Primary and Lower Secondary Education Access, Quality and EfSlciency work-program, through fostering appropriate utilization of school operational budgets and strengthening program monitoring interventions. They also complement the ESSP 2004-08 Continuous Teacher Development work-programs b y supporting the objectives laid out in i t s education management development and continuous teacher developmentANSET objectives. Finally, they are consistent with the ESSP goals for Institutional Development and Capacity Building, a goal endorsed by Government and donors in the December 2004 Consultative Group meeting.
Assistance w i l l be concentrated, but not necessarily exclusively, in ten provinces/municipalities (Banteay Meanchey, Battambang, Kampong Som, Kampot, Kep, K o h Kong, Kratie, Mondulhr i , Pailin, Ratanakiri) that have received no or very limited overseas development aid in past years, especially targeting districts with high poverty incidence and poor education outcome indicators. A baseline and final project impact evaluation survey w i l l be conducted over the implementation period to appraise changes in school effectiveness conditions.
2.2. Establishing a national assessment monitoring system (US$0.65 million). MoEYS has set as an objective to establish a National Assessment System (NAS) in order to evaluate education quality and student achievement on a continuous basis at the primary and secondary levels through a standardized test. In particular, the NAS w i l l (a) appraise student competencies, (b) uncover variables associated with student achievement, (c) inform policy development and (d) provide pedagogical inputs for enhancing teaching and learning practices. The assessment in Khmer language and mathematics w i l l be implemented on a nationwide sample o f grade 3,6 and 9 students.
Component 3: Assistance to the Education Sector Support Program (US$3.00 million). This component would address the implementation o f additional selected interventions under the ESSP, to be agreed with IDA during project implementation. Investments made under this component w i l l be conditional to the presentation and approval o f an implementation plan for proposed activities. This would include a detailed spending plan for equipment, training and technical assistance, c iv i l works and materials, terms of reference for consultancies, arrangements for component leadership and monitoring and evaluation requirements.
4. Lessons learned and reflected in the project design The project preparation team has benefited f rom an in-depth comprehensive impact evaluation of the EQIP project, the Implementation Completion Report o f the Flood Emergency Rehabilitation Project (FERP) and recent analytical sector work on basic education determinants. The key lessons learned incorporated into the CESSP design include:
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Significant improvements in student access to primary schooling have given way to a concern over educational quality. Student outcomes and academic achievement need to be systematically measured and monitored in order to appraise the effectiveness, progress and impact o f the MoEYS education reform agenda.
On-the-job training with access to regular feedback has proved more effective to build local level capacity than seminar-based, cascade training approaches. Peer partnerships and a reflective support network comprised of teachers, principals, inspectors, district officers and provincial leaders can be effective in improving teaching and learning. Sustained demand- driven technical support, facilitation and coordination are essential to achieve service delivery quality improvements at decentralized levels.
In-service teacher training in Cambodia lacks an overarching organizational framework, a network o f technical support from the Teacher Training Colleges and Provincial/District Education Offices to schools, and ways of identifying content that address system needs (top- down) and teacher needs (bottom-up).
Institutionalizing the role of communities in the process of school development planning develops trust in the school’s capacity to manage human and financial resources while promoting local accountability and transparency.
Community contracting can be an efficient means for procurement o f large numbers o f school buildings simultaneously over geographically dispersed areas. Communities can identify smaller, regionally-based, experienced contractors. In addition, they can play an important role as an accountability and quality assurance mechanism during civ i l works implementation.
Alternatives considered and reasons for rejection The World Bank financed under EQIP a successful cluster-based small grants program for primary schools in three pilot provinces. The introduction of school operating budgets through MoEYS’ Priority Action Programs (PAP) made a national cluster/school grants scheme largely redundant. The design o f the project builds nonetheless on the lessons learned from EQIP, . retaining a focus on school/cluster development and education quality improvement strategies piloted under the project.
MoEYS in October 2002 submitted a Concept Note to the World Bank proposing that financial assistance be directed to secondary education and policy-based budget support. The successes in the national school enrollment campaign are indeed placing great pressure on secondary education to expand in size in order to accommodate the quickly growing cohort o f primary school graduates. Both supply and demand-side interventions have been put into place to accommodate the expansion o f the secondary education subsector. Consolidating and deepening the successes achieved in primary education has been retained and i s an important part of the secondary expansion strategy within the project, since upper primary drop-out i s presently a bottleneck for further systemic expansion.
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C.
The current CAS has a strong focus on strengthening national budgetary and financial management systems. A budgetary support approach was considered for this operation. The multidonor Public Financial Management Reform Program, tightly structured around a long-term sequenced strategy, provides a framework to appraise baseline conditions for budgetary support. This program i s only in i t s initial stage o f implementation ("Platform l"), so further progress was deemed as a minimum requirement. The Asian Development Bank (ADB) and the European Commission (EC) are currently providing targeted budget support to the education sector. Financing to education has increased significantly in the past few years, but the timeliness and reliability o f disbursements have been problematic, with serious delays and large carryovers from one fiscal year to another. The ADB and the E C are supporting technical and financial assistance to address present challenges. The ongoing Public Expenditure Tracking Survey w i l l also provide an analytical foundation for budgetary support in future operations.
IMPLEMENTATION 1. Partnership arrangements On December 1-3,2004, MoEYS and i t s partners jointly reviewed the draft Education Sector Support Program 2004-2008. The ESSP outlines how the Ministry's systems, programs and resources w i l l implement the new Education Strategic Plan 2004-2008. This joint review provided an opportunity for Ministry leaders and staff, provincial administrators, related ministries, international partners and NGOs to generate ideas and propose recommendations to the draft ESSP. The review process has been designed to promote participatory decision-making and ensure broad cooperation among key stakeholders.
CESSP has been designed within the context of the ESP/ESSP sector-wide approach. The ESSP includes an Indicative Education Sector Common Policy Action Matrix (see Annex 15). The matrix supports policies outlined in the ESP 2004-08 and provides an overarching framework for CESSP related activities, especially in the areas o f school facilities, access barriers to education, teacher training/support and deployment and student assessment. Issues most closely relevant to CESSP are highlighted in gray.
The project was appraised jointly with the Asian Development Bank's Second Education Sector Development Program (ESDP2) to ensure programmatic alignment and complementarity between both programs o f financial assistance. The facilities program w i l l be implemented jointly with ESDP2, under the leadership of the Materials and State Property Department.
Organization I Area of Operation Asian DeveloDment Bank I Nationwide
The scholarship program w i l l be implemented b y the Secondary Education Department, in partnership with MoEYS' own national scholarship program (PAP12) in 214 lower secondary schools (LSS), the ADB-financed Japan Fund for Poverty Reduction (JFPR) pilot scholarship program in 93 L S S and the Belgian Technical Cooperation (BTC) scholarship scheme in Otdar Meanchey, Siem Reap and Kampong Cham provinces (but the latter two programs w i l l close within the first two years o f CESSP implementation). The Wor ld Food Program (WFP) has been supporting MoEYS through primary school breakfast schemes and take-home rations for upper primary girls. A coordinated demand-side incentives framework between lower secondary schools supported by CESSP and primary feeder schools supported b y WFP wil l be encouraged.
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Organization I Area of Operation Asian Development Bank I 93 L S S nationwide, targeted by commune poverty
Belgian Technical Cooperation Wor ld Food Program
incidence Odtar Meanchey, Siem Reap and Kampong Cham Primary school breakfast and take home ration
I I schemes, targeted by commune poverty incidence I
Organization Belgium Technical Cooperation Save the Children Norway
UNICEF/SIDA/KAPE
Voluntary Service Overseas
Service delivery quality enhancement interventions w i l l be developed centrally b y the Teacher Education Department, supported b y the Pedagogical Research Department curriculum reform efforts, and implemented by MoEYS decentralized offices at provincial and district levels. These activities w i l l be closely coordinated with international partners and NGOs-including KAPE, Save the Children Norway (SCN), Voluntary Service Overseas (VSO), Belgian Technical Cooperation and UNICEF/SIDA-currently active in this arena, in order to avoid overlapping or duplication of efforts as well to promote harmonization and integration in procedures and interventions. A common overarching methodological approach w i l l be adopted. An operational working group under the leadership of MoEYS w i l l serve as a forum to jointly review, harmonize and mainstream successful experiences into the of€icial academic program.
Area of Operation Kampong Cham, Odtar Meanchey and Siem Reap. Kampong Cham, Kampong Chhnang, Odtar Meanchey, Phnom Penh, Preah Vihear, Pursat and Siem Reap. Kampong Speu, Kampong Thom, Prey Veng, Svay Rieng, Stung Treng and Odtar Meanchey Battambang, Kampong Cham, Kampong Chhnang, Kampot, Kandal, Prey Veng, Ratanakiri and Takeo
2. Institutional and implementation arrangements The project w i l l be implemented at the national, provincial, district and school levels over a period o f five full calendar years (approximately July 2005 to June 2010). MoEYS wi l l assume overall responsibility for coordination and implementation o f the project, including procurement, disbursement and financial management. An inter-ministerial Steering Committee w i l l be responsible for overall policy direction and project oversight, under the Chairmanship o f a MoEYS Secretary o f State. The Steering Committee w i l l include representation of relevant Government sector stakeholders, such as Ministry o f Labor and Vocational Training, Ministry o f Economy and Finance, Ministry o f Planning, Council o f Administrative Reform, Ministry o f Justice, Ministry o f Interior, Ministry o f Women’s Affairs, Ministry of Rural Development, Ministry of Urban and Land Management and Ministry o f Social Affairs and Youth Rehabilitation. The Steering Committee shall also be responsible for (a) approving the annual programs and budget allocations, (b) overseeing progress and compliance with agreed guidelines, (c) commissioning and approving project-required accounts and reports, and (d) ensuring agreed audit requirements are satisfied. A Project Manager in the Directorate General o f General Education of MoEYS w i l l have the overall day-to-day responsibility for the management of the project.
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Project implementation w i l l be carried out by existing MoEYS departments-including Materials and State Property, Primary Education, Secondary Education, Examinations Office, Teacher Education, Pedagogical Research, Teacher Training Colleges and Provincial and District Education Offices-in order to build long term systemic capacity and ensure sustainability. In order to coordinate various project activities under three components in 24 provinces, a small coordination office w i l l be set up at the national level in the Directorate General of General Education (MoEYS) for the Project Manager and a small external technical team, consisting of a Chief Technical Advisor, a Finance Officer, a Procurement Officer and a Project Facilitator, and several administrative staff that w i l l support MoEYS in project implementation. The coordination office w i l l assist in tasks relating to procurement and disbursement activities, in maintaining a sound financial management system, in monitoring and evaluating program objectives, in facilitating technical assistance supporting MoEYS Technical Departments, in providing training and guidance to ProvincialDistrict Education Offices and schools and in coordinating interactions with related government agencies, international partners and NGOs. They w i l l also provide guidance to POEs and DOES on local activities such as training and workshops. The project w i l l rely on existing procurement and financial management staff that have worked under the E Q P and FERP projects. A small short-term external technical consultant team wi l l assist on specific tasks during project administration and implementation, as needed.
3. Monitoring and evaluation of outcomes/results The ESP 2004-08 includes a range of performance indicators to appraise progress towards improvements in equitable access, quality and efficiency of basic education service delivery. ESP indicators and national targets are included as part o f Annex 3.
CESSP wi l l track indicators specified in the project Results Framework through four principal avenues: (a) the existing Education Management Information System (EMIS) o f MoEYS; (b) monitoring and evaluation of the scholarship program; (c) monitoring of the quality o f service delivery; and (d) student achievement measurement.
(a) The existing EMIS wi l l supply data to appraise the program’s overall impact on key education indicators, including: grade 1 intake, net enrollment rates, repetition and drop-out rates, transition rates to lower secondary education, student-teacher ratios and number o f classrooms built. Where possible, data w i l l be disaggregated b y locality, gender and ethnic origin in order to track the program’s impact on disadvantaged groups. EMIS data w i l l be benchmarked against education indicators f rom the 2004 Cambodia Socioeconomic Survey.
(disaggregated by gender, commune poverty level, location and ethnicity,
9 Net primary and lower secondary enrollment rates 9 Drop-out and repetition rates 9 Primary completion rate
wherever appropriate) 2. Qual@ and Efficiency I > Student achievement in grade 3,6 and 9 assessments
I 9 Transition rate from primary to lower secondary
9 Share of trained teachers- 9 Student: teacher ratio
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(b) The CESSP scholarship program in Component 1.2 w i l l be accompanied b y a rigorous evaluation o f i t s impact. The main goals of the evaluation are to establish: (i) the role that scholarships play in increasing school enrollment and grade completion; (ii) the effect that varying the amount of a scholarship has on promoting enrollment and completion; and (iii) the profile o f children who are most amenable to be induced to enroll and complete schooling through a scholarship program such as this one. The purpose of the evaluation i s to enable the design of an efficient, affordable, and cost-effective national scholarship program-a strategic goal o f MoEYS.
(c) The MoEYS CESSP preparation team, in collaboration wi th E C technical assistance, has developed a school monitoring form (or “school report card”) as part o f Ministry’s efforts to upgrade the inspectorate function. The instrument builds on previous experiences in Cambodia and includes a range of measures o f school effectiveness, such as school environment, teaching and learning, management and community involvement. School report cards can be useful as capacity building tools by sending messages about what a “good school” looks like. I t i s a good entry point as a diagnostic for school development planning and utilization o f resources transferred to the school. An expanded instrument (see Annex 15) w i l l be used under CESSP to collect baseline information to appraise the impact on schooling practices o f activities under Component 2.1. I t w i l l be applied in a stratified sample o f schools prior to program implementation and before project closing b y an independent party.
The administration o f an expanded instrument w i l l also serve as a means to appraise the validity and reliability o f the shorter form version for national application. Results o f the monitoring exercise w i l l be presented to school communities through several different modalities. This w i l l serve to appraise the impact of various approaches to information dissemination about schooling services to education stakeholders and seek to encourage parental involvement at the school level, as promoted under the ESP 2004-08 Primary Quality and E’iciency objectives.
(d) Student achievement tests in grades 3,6 and 9 in Khmer and mathematics w i l l be implemented in a stratified sample o f schools under Component 2.2, at least twice during the lifetime o f the support project to provide regular and reliable data on student achievement. Assessment results w i l l be utilized to inform policy making and school level practices.
4. Sustainability MoEYS commitment to education reform i s strong. The NPRS and ESP have been endorsed b y Government leaders and international partners. All project components are embedded in the Ministry of Education’s medium term plans. The national Priority Action Program already incorporates provisions for a scholarship scheme for disadvantaged children (PAP12), school operational budgets as well as funds for teacher capacity building and continuous development. MoEYS has expressed commitment to the creation o f a permanent national assessment system housed in an independent MoEYS department. The main source o f concern i s that, as the education system continues to grow, public commitments to education sector strategies continue to be adequately supported by sufficient budgetary resources.
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5. Critical risks and possible controversial aspects The project draws on best-practice reform efforts in Cambodia and also other countries. Proposed components are embedded within the national Education Strategic Plan. The ESP was produced through a lengthy consultative process. Innovations-such as c iv i l works community- contracting procedures, demand-side incentives (scholarships) to reduce education access barriers for disadvantaged children, strengthening decentralized education quality improvement planning and teacher professional development, student achievement testing and monitoring- have all been piloted during the past few years.
CESSP objectives, strategies and interventions have been developed at the suggestion of MoEYS. Several national and provincial consultation workshops were held to obtain feedback from Government and c iv i l society education sector stakeholders during project preparation.
No significant institutional concerns are envisioned. MoEYS has demonstrated satisfactory performance during the implementation of the EQIP and FERP projects. The Cambodia Education Sector Support Project w i l l build on MoEYS experiences and expertise.
Risk From Outputs to Objective Poorest and most disadvantaged children cannot be reached b y or do not respond to scholarships.
Decentralized school improvement activities are not appropriate to address student drop-out or improve zducational quality; schools and zommunities cannot partner zffectivel y.
Student achievement data collected i s not utilized in policy reform b y MoEYS and does not guide ongoing teacher training or classroom pedagogical improvements. From Components to Outputs Teachers are not supported with sufficient teaching and learning materials and methods that enable them to optimize their s k i l l s and knowledge: absence in the field o f
Risk Rating
M
M
N
M
Risk Mitigation Measure
Project design incorporates proven strategies learned from other pilot projects in Cambodia, and i s based on extensive international research. The ex-ante evaluation design w i l l allow for periodic reviews to sharpen targeting strategies. The project w i l l provide sustained long- term technical assistance to build grassroots capacity to identify needs, develop responsive improvement plans, support their implementation and appraise their impact. Technical assistance w i l l also strive to catalyze community engagement and DarticiDation. A clearly defined reporting and dissemination strategy i s included into the project implementation plan so as to promote data utilization for policy and teaching and learning purposes.
The Teacher Education Department w i l l have the mandate to work together with Teacher Training Colleges in the development and dissemination to schools of suitable methods and support
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qualified teacher and director trainers; lack o f Regional Teacher Training Colleges for lower secondary school professional development in most provinces.
Lower secondary schools and their primary feeder schools do not work well together so as to take advantage of synergies in training activities.
Although direct fiduciary (financial management and procurement) I
r isks for this project are limited, the countrywide fiduciary environment i s weak.
I Overall Risk Rating
S
S
materials. All new schools w i l l be supplied with teaching aids; training programs w i l l support teaching aid production. Teacher Training Colleges w i l l be supported to delegate trainers for in-service training activities. In remote areas, recommendations from the Remote Schools Teacher Development Framework w i l l be adoDted. Primary and secondary school staff w i l l be largely housed within a single campus, so a whole school approach w i l l be promoted to the extent possible; joint training activities w i l l take into consideration the relevance and appropriateness to the beneficiary groups targeted. Strong financial management and procurement guidelines and supervision w i l l be instituted through the implementation o f the project, including annual independent audits.
Risk Rating - H (High Risk), S (Substantial Risk), M (Modest Risk), N (Negligible or Low Risk)
6. Loadcredit conditions and covenants Effectiveness Conditions
Management Appointment of key staff to positions, such as the Project Manager, the Project Facilitator, the Finance Officer and the Procurement Officer Establish a monitoring and evaluation system to conduct a baseline study and a final impact evaluation
Financi a1 Adopt a computerized accounting system together with appropriate manual processes, including a chart o f accounts o f the project and Financial Management Reports (FMRs), in a manner and substance acceptable to IDA Training o f the staff o f the Project Finance Office and Accountants o f the Borrower at the provincial and district level in Accounting and Financial Management essentials in a manner and substance acceptable to IDA
Disbursement Conditions
0
Management The adoption of a Community Contracting Operational Manual, satisfactory to IDA, before the start of school construction
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The adoption of a Scholarship Scheme Operational Manual, satisfactory to IDA, before the scholarship scheme implementation The submission of an implementation plan including a procurement plan, satisfactory to IDA, before the implementation o f Component 3
Covenants Management Establish and maintain a small coordination office, adequately staffed, mainly for project activities coordination and administrative tasks, during the l i fe o f the project Submit annual work programs, including a procurement plan for the following implementation year, no later than June 30 starting in June 2005 Submit Project Progress Reports biannually, and no later than six months after each calendar semester Submit Financial Monitoring Reports (FMRs) quarterly, and no later than 45 days after the end of each quarter Submit annual financial statements and audit reports within six months after the end of each financial year Submit Terms of Reference, satisfactory to IDA, for a joint mid -term review at the beginning o f Year 3 of project implementation Submit an Implementation Completion Report at the end o f the project, and no later than six months after the closing date The activities to be financed under Component 3 w i l l be selected and implemented in accordance with criteria and procedures set out in an implementation plan satisfactory to IDA. (This would include a detailed spending plan for equipment, training and technical assistance, c iv i l works and materials; terms of reference for consultancies; arrangements for component leadership as well as monitoring and evaluation.)
D. APPRAISAL SUMMARY 1. Economic and financial analyses Basic education as a priority investment sector. Large private returns to education in Cambodia mainly reflect the acute scarcity o f educated workers at even low levels o f education. Despite recent increases in primary school enrollments, there has not been much improvement in terms of completion rates in basic education. Cambodia has s t i l l some distance to go before achieving universal primary education (WE). Achieving UPE wi l l require addressing the bottlenecks starting in upper primary school, particularly among poor children, and focusing on interventions that promote equitable access and participation.
The expansion of upper primary and lower secondary school facilities should help attract a greater number o f children into school, attract them earlier, and retain them through primary school and beyond. Recent increases in primary school enrollments have resulted in greater numbers o f primary school graduates, and this already poses pressure on the supply o f L S S education.
Based on an analysis o f the role o f household wealth in relation to both the direct cost o f schooling (payment b y families o f informal fees and other monetary outlays) and the indirect, or opportunity, costs o f schooling (work and earnings foregone when children
14
attend school), and drawing upon the experience from a recently introduced scholarship program, a school incentive (scholarship) scheme has. been developed. This scheme should improve primary school completion, as well as the transition to and completion o f L S S among girls and disadvantaged children.
Enhancing teacher education and professional development should bring about significant improvements in student flows and learning. The heterogeneous and unequal distribution of educational background and pre-service training continues to characterize the teacher labor force in Cambodia. There are limited opportunities for professional development. The quality of pre-service training i s low. A recent impact evaluation study shows that among alternative quality improvement interventions at the school level, teacher training investments had the highest payoff in terms o f student retention, promotion and, particularly, student learning. Teacher education training has a strong negative correlation to primary school drop-out rates, to the attraction o f greater numbers o f children to school and to attracting them earlier.
Financial sustainability analysis. The major components of CESSP that would incur significant recurrent expenditures are: (1) the construction o f classrooms to accommodate the expansion o f enrollments, implying the recruitment o f additional teachers, whose salaries w i l l need to be covered, and (2) the scholarship scheme for disadvantaged children. Thus, the long-term financial sustainability of the project relies on the Government’s ability to absorb these costs in the budget once the project closes. The financial sustainability o f both activities were examined b y looking at recent trends and budget plans for recurrent Govemment expenditures in education.
Since 1997, the Government has shown an increasing commitment to pro-poor Government spending in education. According to the Medium-Term Macroeconomic Framework for 2003- 09-prepared b y the IMF in collaboration wi th the Ministry of Economy and Finance (MoEF)- total government expenditure as a share o f GDP and recurrent government expenditure as a share of the total are expected to be maintained at least at 2004 levels. While, according to MoEF budget projections, education’s share o f the recurrent budget w i l l fall from i t s peak level o f 19.5 percent in 2004 to 18.5 percent in 2005, nevertheless, Government’s commitment to education as a priority sector suggests that education’s share can be maintained at this level (or higher) in the years ahead. Moreover, ESP projections show that the percentage o f recurrent education spending allocated to basic education wil l increase gradually to 76 percent (from 62 percent currently) whereas, to promote access to education for poor children, in the interest o f equity, the private (i,e., household) share o f total spending on basic education i s projected to fall from 17 percent to just 12 percent.
The national scholarship scheme set up in 2003 integrated the Government’s PAP12 Scholarship Program for the Poor wi th two donor-funded scholarship programs. The budget allocation for PAP12 i s predicted to increase from about 3 bi l l ion Riels in 2003 to about 12 bi l l ion Riels in 2006 (and thereafter), an indication o f the Government’s commitment to this kind o f pro-poor intervention. The scholarship component o f CESSP wil l support and be part o f this national scholarship scheme.
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The conclusion o f the economic and financial analysis (see Annex 9) i s that the increased teachers’ salary bill and the student scholarship scheme are affordable within the Government’s budget and can be sustained after the close of CESSP. I t i s projected that the recurrent budget for education w i l l continue to increase in future years -between $4 mi l l ion and $6 mill ion in all years except for 2005, when the recurrent budget for education i s expected to be about the same as in 2004. For 2005, there i s a projected shortfall of $1.368 million, which CESSP’s financing o f student scholarships can cover. In subsequent years, the Government’s own budget should be adequate to finance the incremental expenditures on teachers’ salaries and scholarships, even without continuing external support from the World Bank and the ADB. B y the close of the CESSP operation, there should be adequate budget to sustain indefinitely the recurrent expenditures generated by the ESP program for basic education.
2. Technical Project design i s based on international best practices and Cambodia’s own past experiences with pilot programs for (a) school facilities development using community-contracting procedures, as appropriate (b) scholarship schemes targeting disadvantaged children, (c) school development planning and teacher professional development to enhance educational outcomes and (d) student achievement testing.
3. Fiduciary A joint assessment o f financial management and procurement capacity was conducted by accredited senior specialists during project preparation and found to be satisfactory and acceptable.
MoEYS has had previous experience in implementing Bank projects (e.g., EQIP and FERP) and putting into practice adequate financial management processes and controls. The scholarship scheme wi l l adopt and adapt the procedures followed under the current ADB-funded JFPR scholarship pilot. The financial accounting and management arrangements for CESSP are considered satisfactory. The proposed finance staff are experienced in project accounting and financial management monitoring and reporting. Next steps are: (i) finalizing appointment of finance staff for the project within MoEYS, (ii) training o f the finance staff in the project specific financial arrangements and systems, and (iii) developing a project specific Finance Manual, including Financial Monitoring Reports (FMRs). These steps are being addressed. The financial management and procurement policies, systems and procedures and format o f FMRs are being documented in the Project Finance Manual and a training program i s being developed and implemented for finance staff.
CESSP wi l l use the traditional transaction based disbursement method with separate Special Accounts for managing the IDA credit and IDA grant funds. Quarterly financial management reports w i l l be produced to monitor and evaluate project financial performance against annual work plans and budgets. A separate Bank Account w i l l be used for managing the Government counterpart funds.
Annual financial statements w i l l be prepared b y CESSP. The financial statements w i l l be audited in accordance with international auditing standards b y an independent auditor. The
16
auditor’s reports together with a management letter w i l l be made available to IDA within six months o f the close of the financial year.
No major procurement issues are expected. Civ i l works and furniture w i l l be procured through national competitive bidding, shopping procedures and a community contracting approach, already piloted in Cambodia through the Flood Emergency Rehabilitation Project as well as b y other international partners (European Commission, JICA and ADB).
4. Social The project strives to support the Royal Government o f Cambodia in i t s commitment towards achieving high quality basic Education For All and promoting equitable access to education- inclusive o f girls and disadvantaged children. In addition, strengthening decentralized school planning and monitoring w i l l motivate community participation, ownership and accountability.
A primary area o f concern i s differential access to project benefits. The scholarship handbook w i l l include targeting criteria which w i l l take into account children l iving in remote areas- where many o f them belong to ethnic or indigenous minority groups-or former Khmer Rouge controlled areas. The World Food Program has developed poverty maps and an index of “education disadvantage” that w i l l serve as a guide to identify beneficiaries and channel resources. CESSP w i l l be implemented in close coordination wi th a Japan Social Development Fund (JSDF) grant, if approved, to mainstream inclusive education for children with disabilities in six pilot provinces.
With regards to gender and ethnic minority issues, the proposed school facilities expansion and scholarship programs are expected to play a positive influence in enabling girls and ethnic minority children to complete primary and continue on to secondary schooling b y reducing the distance away from school and diminishing the direct and opportunity costs to education. Targeted scholarship schemes are an actionable measure in the General Policy for Highland Peoples Development (prepared by the Inter-Ministerial Committee for Highlands People Development in 1997).
Lack o f toilet facilities i s a factor often cited as a barrier to female participation. School construction w i l l include lavatories for boys and girls. Teacher professional development activities may also serve as an avenue to challenge stereotypical attitudes towards gender. Teachers can raise awareness about the importance of equal access to education for boys and girls in their communities and promote attitudinal changes towards the role o f girls and women in domestic l i f e as well as in society or the economy. The project w i l l also follow the recommendations from the Remote Schools Teacher Development Framework in order to foster professional deployment and development o f indigenous peoples as teachers.
Improving access to basic education demands close contact and dialogue with parents, communities and local stakeholders. The project w i l l promote local participation and involvement through a variety o f avenues, such as community-contracting schemes for school facilities development, participation in local management committees for the scholarship program, involvement in school planning and encouragement o f local accountability through public dissemination o f information on school performance and resource allocation. Bringing
17
parents closer to schools can also be an avenue to sensitize communities and teachers to stop corporal punishment. According to the Demographic and Health Survey, 23 percent of women and 50 percent o f children are subject to physical maltreatment. A survey o f 12,000 grade 5 and 6 students in 4 provinces conducted by Save the Children Norway suggests that over 20 percent were physically punished.
Project preparation was informed b y over 400 informants-including community members, teachers and primary and lower secondary students-from urban, rural and remote areas. Focus group discussions were held in three provinces. Civ i l society participation was also incorporated during the project design stage through the representation o f the NGO Education Partnership in the project Steering Committee.
5. Environment Proposed civ i l works for school facilities w i l l be aligned with the MoEYS Education Facilities Plan. This activity w i l l consist primarily of classroom expansion in incomplete primary schools and/or provision of grade 7-9 facilities mostly within existing primary school campuses in communes where there are no secondary schools. School design w i l l include appropriate ventilation, lighting, sanitation facilities and ramps for disabled students, as appropriate. An independent evaluation o f community-built schools was conducted b y ADB in September 2002 and found satisfactory where communities received construction supervision training before the start o f school construction.
Recommendations for improvement of school wastewater treatment facilities, flood protection for drinking water wells, sanitation of latrines, training in use and maintenance o f latrines and environmental screening of proposed civ i l works have been incorporated into MoEYS standard practices under FERP. Contractor specifications to address environmental issues, including construction dust and noise control, waste management, site management, provision o f clean water and sanitation facilities, unexploded ordinance removal, and asbestos containing material demolition management have also been adequately addressed and integrated to bidding documents.
6. Safeguard policies
Safeguard Policies Triggered by the Project Yes N o Environmental Assessment (OP/BP/GP 4.01) [ I [XI Natural Habitats (OP/BP 4.04) [ I [XI Pest Management (OP 4.09) [I [XI Cultural Property (OPN 11.03, being revised as OP 4.11) [XI Involuntary Resettlement (OP/BP 4.12) [ I [XI Indigenous Peoples (OD 4.20, being revised as OP 4.10) [XI Forests (OP/BP 4.36) [ I [XI Safety o f Dams (OPBP 4.37) [ I [XI Projects in Disputed Areas (OP/BP/GP 7.60)* [ I [XI Projects on International Waterways (OPBP/GP 7.50) [I [XI
[I
[ I
* By supporting the proposed project, the Bank does not intend to prejudice thefinal determination of the parties' claims on the disputed areas.
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7. Policy Exceptions and Readiness No policy exceptions are being sought. The project meets the Regional criteria for readiness for implementation, regarding financial management, procurement, project staffing, counterpart funds budgeted, tender documents for first year’s procurement, disclosure requirements and monitoring and evaluation mechanisms. No land acquisition plans or resettlement framework are required, since c i v i l works wi l l largely take place within existing school campuses or, in approximately 20 percent of cases, on vacant and idle land owned by the Govemment that i s free f rom al l encumbrances, habitation, dispute, c la im or controversy. The use of the land wil l neither require a resettlement plan nor a resettlement framework.
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Annex 1: Country and Sector Background
CAMBODIA: Education Sector Support Project
Education development i s central to poverty reduction and socio-economic development in Cambodia. The National Poverty Reduction Strategy lays emphasis on the expansion o f equitable educational opportunities for the poor as a priority item. High quality education w i l l provide a pool o f highly skilled laborers, help strengthen institutional capacity in public service, promote c iv i l society participation and accountability and improve health outcomes. The Joint World Bank-IMF Staff Assessment highlights that the strategy for the education sector supported b y the Royal Government of Cambodia i s comprehensive, coherent and strongly pro-poor.
The Education Strategic Plan 2004-08 outlines in greater detail a vision to promote universal access to nine years o f high quality basic education. I t s main features include (i) assuring equitable access to educational services and (ii) improving the quality and efficiency o f education services.
The proposed project i s closely aligned with the Cambodia Millennium Development Goals (MDGs) as it strives to ensure that boys and girls equally w i l l be able to complete a full course o f primary education and transition into lower secondary schooling. I t also responds to the Country Assistance Strategy (CAS) goals o f strengthening Cambodia's foundation for sustainable development and reducing poverty b y enhancing human capital. The interventions included here are embedded within the overarching framework o f the ESP and the Education Sector Support Program. The ESP adopts a sector-wide approach to education planning and development. On an annual basis, MoEYS staff, international partners and NGOs engage in a consultative process and jointly appraise Government's priorities for the sector, review actual progress towards the achievement of sector goals and promote efficient utilization o f overseas development aid.
Sector Background Cambodia i s one o f the poorest countries in East Asia. The majority of i t s population earns less than $1 per day and i s vulnerable to poverty, landmines, disability, high incidences o f mortality and morbidity, and lack of social safety nets. 20 percent o f all households are female-headed and 75 percent of the population relies on agriculture for their livelihood. Government capacity and spending in general i s low, including the education sector.
Despite such adversity, Cambodia has made significant progress over the last five years in expanding educational opportunities, especially at the primary level and with a rising share of rural girls and ethnic minorities. According to national statistics, the primary education net enrollment rate (NER) in 2003 had reached 90 p e r ~ e n t . ~ The NER in lower secondary education was 21 percent and in upper secondary education was 8 percent. Estimates from the Cambodia Chi ld Labor Survey suggest that about 59 percent o f children who start school actually graduate from primary education.
See Footnote 1
20
The education system i s facing several challenges, including:
20.0 - 10.0 - 0.0
Gender disparities in educational opportunities remain a source o f some concern at all levels of education. There has been some progress in recent years in the reduction o f the gender gap, especially at the primary level. Between 1996 and 2001, gender parity levels increased from 0.86 to 0.94 for primary schooling and from 0.66 to 0.77 for lower secondary schooling. However, the gender gap in enrollment widens at each successive level and i t grows particularly acute at the upper secondary level. Very few girls complete secondary schooling, limiting the number of eligible women candidates for higher education and for professional and administrative careers-including the teaching profession where increased numbers o f female teachers would support girls' enrollment and completion of schooling. These gender based inequities are related to cost factors, lack o f facilities for secondary schooling, late starts, and high repetition and drop- out rates.
-fi
There are significant disparities in education participation rates across different income groups. In 2001, while the primary NER for the poorest quintile was only 61 percent, the richest quintile was represented b y 85 percent o f the relevant age-group. These disparities are explained in part b y the reality that over 90 percent o f the country's incomplete schools are located in rural and remote areas, and in part by teacher and school quality deficits producing higher repetition and drop-out rates. An encouraging recent development has been the increasing participation of children from low-income families in school. The highest enrollment growth in 2002/03 was in the lowest poverty quintile; however, a wide gap s t i l l needs to be bridged.
Completion rates from grade 1 by wealth (CCLS)
100.0 - 90.0 - 80.0 - 70.0 - 60.0 - 50.0 - 40.0 - 30.0 -
The situation for lower secondary education i s comparatively worse. Despite overall improvements in access to lower secondary education, inequities in access to grades 7-9 remain. The enrollment share from the poorest communes i s only 6 percent; the share for the richest communes has remained constant at around 37 percent. Thus, in grades 7-9, the richest communes are significantly over-represented relative to poorer communes. These inequities are even more severe in grades 10-12, where the richest quintile accounts for 57 percent o f enrollments in 2001, compared to only 1.5 percent from the poorest quintile. These income- based inequities are attributable in part to the fact that 65 percent o f Cambodia's 1,628
21
communes do not have a lower secondary school, along with low income households facing high cost barriers.
The efSlciency of education service delivery at both the primary and lower secondary levels are poor. At the primary level, the repetition rate i s highest in grade 1 at 17.5 percent but tapers of f to 2.3 percent b y grade 6. Primary drop-out rates for 2001/02-2002/03 showed increases from grades 3 to 6, peaking at 15 percent in grade 6. Overall, these data suggest the need to improve primary progression rates in order to stabilize primary student flows.
At the lower secondary level, progression rates have improved in recent years, with the number of grade 7-9 students increasing from 220,000 to 460,000. Reflecting this trend, the average size o f secondary schools has also increased b y 15 percent. These positive data, however, mask a stagnant national transition rate from grade 6 to grade 7 o f 79 percent, wi th this rate declining further for girls and in poorer rural areas. In addition, in 2001 an estimated 82 percent o f the country's total 12-14 year-old cohort were out of school. Cambodia's weak transition rate points to a large number o f students that have dropped out of incomplete primary schools, lack of sufficient lower secondary school places and cost barriers for girls and poorer children.
Drop-out rates peak in the transition from primary to lower secondary school and remain high through this level. The bottleneck in the basic education system starts in upper primary education. I t i s also worth noting the significant discrepancy between the proportion o f children reaching the last grade of primary education and the first grade o f lower secondary education and the proportion o f children actually completing these grades.
The quality of education service delivery is low. Schools have expanded enrollments at an unprecedented rate, but crowded classrooms, insufficient trained teachers and inadequate instructional time threaten to underrnine investments in improved access and efficiency.
Between 1998-99 and 2001-02, the national average primary pupil: teacher ratio increased from 48: 1 to 56:7, despite an increase in the overall number o f classrooms. This trend reflects a lack o f trained and experienced teachers at the primary level. The situation i s even worse in remote provinces. The number o f schools resorting to double- or triple-shift use o f facilities had shot up from 2,852 in 1998-99 to 4,591 b y 2001-02. This i s an unsustainable short-term solution to the need for more teachers despite appearances of efficiency gains. Teacher capacity i s generally weak, presenting the risk of declining instructional quality and learning outcomes. Furthermore, teachers and school directors are not equitably deployed throughout Cambodia, due in part to low salaries and in part to lack o f sufficient incentives to draw staff to rural and remote areas. L o w salaries result in teaching staff seeking alternative income-generating opportunities, and these are harder to find in comparatively poorer areas.
The Master Plan for Development of Teacher Education (2001-2005) underscores the need to upgrade the teaching s k i l l s and academic status of teachers in order to move from a teacher- centered to a student-centered teaching methodology. The linkages between Teacher Training Colleges (TTCs) and daily school practices are slight, and there i s a real lack of articulation between pre-service and in-service teacher training. The present in-service teacher training approach lacks an overarching organizational framework, a network o f technical support from
22
TTCs to schools, and ways of identifying content that addresses both system (top-down) and teacher (bottom-up) needs.
In primary schools, there i s an absence o f student performance standards; thus, i t i s difficult to make a reliable assessment of learning achievement. However, recent studies of academic outcomes in nationally representative samples of grade 3-5 children as part of the Basic Education Textbook Project and EQIP reveal that the overall performance levels in Khmer, Mathematics and Science are low. Moreover, instructional time i s largely insufficient.
The education sector has made enormous headway in improving its budget planning process and introducing elements of program-based budgeting. As a share of GDP, education expenditure more than doubled from 0.9 percent to 2 percent between 1997 and 2002. The education sector share of the total Government recurrent budget increased to 18.2 percent in 2002, up from 15.7 percent the year before. Over the past five years, an average of 64 percent of education expenditure was devoted to primary education.
MoEYS i s continuing to strengthen recurrent program financing and management systems at all educational levels through the Priority Action Programs (PAP). PAP disbursements, however, have remained unreliable and untimely, often depriving schools, not only o f resources, but also o f the ability to plan on the basis o f expected operational budget allocations. Parental contributions for schooling expenses increase over the education lifecycle, on average from Riel 158,000 per pupil in grade 1 to Riel 274,400 in grade 6 to Riel 657,900 in grade 9. The introduction o f PAP has led to a decrease in overall parental contributions. However, especially in urban and semi-urban areas, schools s t i l l rely to a considerable extent on parental contributions to finance basic maintenance, teaching materials and teacher subsistence costs.
Education management decentralization has been a priority for MoEYS. Yet, local capacity to take responsibility and action for improvement of educational services is weak. Civ i l service salaries are too low. Although actual salaries have increased modestly, budget allocations and expenditure on wages have fallen considerably as a share o f education recurrent expenditure due to a policy effort to increase non-wage funding: The salary share fell from 78 percent in 1997 to only 67 percent in 2002. More recently, MoEYS has created a special program to finance redeployment o f staff and increase staff remuneration moderately (including financial incentives to teach in remote and difficult areas and for managemendleadership functions).
Government strategy The vision for education development in Cambodia i s set out in the Education Strategic Plan 2004-08. The ESP has adopted an ambitious pro-poor agenda, aimed at (a) increasing access to basic education (grades 1 through 9) for all school-age children b y 2010; (b) improving the quality and relevance of schooling; and (c) enhancing the management and efficiency o f educational services. The MoEYS program comprises a comprehensive set o f interventions that strive to address both supply- and demand-side constraints. For example, on the supply side, the Ministry has sought to increase primary and lower secondary educational opportunities through a school construction capital investment program in underserved areas and to improve educational quality b y furnishing educational materials and strengthening teacher professional s k i l l s through in-service capacity building. On the demand side, MoEYS has sought to reduce direct costs to
23
schooling for families b y providing educational establishments with basic operational budgets, abolishing enrollment fees and offering scholarships for disadvantaged children.
Along with the ESP, MoEYS has adopted a rolling Education Sector Support Program, annually updated and implemented in collaboration with international donors and NGOs. The ESSP outlines how the Ministry's systems, programs and resources w i l l implement the new Education Strategic Plan. The ESP and ESSP serve as the overarching framework for the development and implementation o f the Cambodia Education Sector Support Project. CESSP activities- including school facilities development, overcoming access barriers to education through scholarships/demand-side incentives, promotion o f school development planning, teacher upgrading and deployment, and the establishment of a national student assessment-are structured around the ESSP Indicative Education Sector Common Policy Action Matrix (see Annex 14). The specific linkages between project interventions and the ESSP are detailed in the component descriptions (Annex 4).
The World Bank, in support to the ESPBSSP agenda, has been conducting a comprehensive analytical program to contribute to and inform the debate on policy options. Recent sector studies have included: (a) a review of the role of demand- and supply-side factors in facilitating access, completion and learning in basic education, (b) a repeat survey in primary and lower secondary schools of private costs to education and (c) a labor market study o f the impact of s k i l l s on economic growth. The ongoing analytical program agenda includes (a) an impact evaluation o f the JFPR Scholarship Program for Girls and Ethnic Minor i ty Children to assess the role of demand-side incentives in lowering schooling barriers, (b) a review of teacher incentive structures to identify policies to attract, retain, motivate and develop qualified teachers and (c) a Public Expenditure Tracking Survey from the central level to school establishments to assess the efficiency o f Government resource allocation procedures.
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Annex 2: Ma jor Related Projects Financed by the World Bank and other Agencies CAMBODIA: Education Sector Support Project
Sector Issue
Bank-financed Zonstruction of primary & secondary schools
Enhancing quality :ducation service delivery
Other agencies Improving school access (school construction)
Reducing access barriers for disadvantaged groups
Enhancing qusdy education service delivery
Social Fund I1 (2004-07, US $7.1 million)
Flood Emergency Rehabilitation (2002-07, U S $9.4 million)
Education Quality Improvement (2002-07, U S $4.8 million)
JSDF Grant for Education in Reconciliation Areas (Save the Children Norway, 2002-03, US $1.5 million)
JSDF Grant for Public Education for Disadvantaged Children (Save the Children Norway, 2004-07, U S $1.8 million)
Second Education Sector Development (ADB, 2004- 07, U S $15.0 million)
Primary School Construction in Phnom Penh (Japan, 2004-07, U S $4.8 million)
Targeted Assistance for Education of Poor Girls and Indigenous Children (ADB, 2002-07, U S $3 million)
Basic Education and Teacher Training (BTC, 2002-07, U S $8.75 million)
School Feeding Program (UNWFP, 2002-07, U S $ 19 million)
Strengthening of Education Sector Management (ADB, 2004-07, U S $1 million)
CARE/MoEYS Highland Children’s Education Project (AusAid, 2002-07, U S $7.7 million)
Targeted Budget Support (EC, 2002-07, U S $15 million)
The Secondary School Teacher Training Project in Science and Mathematics (Japan, 2002-07, U S $2.8 million)
Basic Education Capacity Building Priorities for SWAP Readiness (SIDAAJNICEF, 2002-07, U S $8 million)
Expanded Learning Opportunities for School and Child Readiness (SIDAAJNICEF, 2002-07, U S $6 million) Basic Education Project (USAID, 2004-07, U S $6.5
Implementation Progress (IP)
S
S
S
Development Objective (DO)
S
S
S
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Annex 3: Results Framework and Monitoring CAMBODIA: Education Sector Support Project
Results Framework
the ESSP goals to expand access to educational services by addressing supply, demand, quality and efficiency constraints, with special focus on the poor and underserved communes.
Component 1.1: Expansion o f educational facilities in poor and underserved areas
Upper primary/lower secondary classrooms built
Schools are adequately resourced and supported
Component 1.2: Reduce access barriers for disadvantaged children
Scholarships awarded to disadvantaged children
Yet primary and lower secondary mollment rates
Vet intake age 6 students in grade 1
Drop-out and repetition rates
Primary education completion rates
rransition rate from primary to lower secondary
Student achievement scores in mathematics and Khmer for students in grades 3,6 & 9
Share o f trained teachers
Student: teacher ratio
Component 1.1:
Share o f complete primary schools and o f communes with L S S access
Availability o f teaching aids and instructional materials
Component 1.2:
Distribution of scholarships by gender, ethnicity, location and socioeconomic status
Use of Outcome Information ~ _ _ _ _ _ _
rhese key indicators (disaggregated 3y gender, ethnicity, location and :ommune poverty level) wi l l help nonitor the overall “health” of the :ducation system. Absence o f improvements in these indicators w i l l trigger a re-evaluation o f the proper balance between demand- vs. supply-side interventions and primary- vs. lower-secondary investments.
Use of Results Monitoring
Component 1.1: This indicator wi l l track school facilities expansion. I t wi l l be monitored in conjunction with student enrollment trends to assess the impact o f supply side variables across different groups of students (gender, ethnicity, location, commune poverty level). Outcome monitoring wi l l allow to fine tune the targeting and pace o f implementation. Component 1.2: This indicator wi l l be analyzed in conjunction with national, provincial and district enrollment trends to assess whether demand-side interventions are having a differential impact in increasing access to schooling for disadvantaged children who would not have gone to school otherwise. Outcome monitoring wi l l allow to fine tune project scope and targeting.
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Component 2.1: Enhancing educational quality service delivery
Component 2.1:
Education service delivery appraised through a school effectiveness impact evaluation tool (“School Monitoring Form”) Component 2.2:
Tests administered on a nationally representative sample o f students
Training programs for MoEYS administrative and school staff delivered
Component 2.1 :
Assess appropriateness and impact o f local level initiatives and resources towards enhancing education service delivery. Component 2.2:
Evaluate the impact o f project overall investments on student performance.
Component 2.2: Establishing a national assessment monitoring system
Student achievement tests in Khmer and mathematics for grades 3, 6 and 9 implemented
27
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Annex 4: Detailed Project Description CAMBODIA: Education Sector Support Project
The objective of the Cambodia Education Sector Support Project i s to assist the Borrower to implement the ESSP goals to expand access to educational services b y addressing supply, demand, quality and efficiency constraints, with special focus on the poor and underserved communes. Over the long term, the project w i l l benefit primary and lower secondary school children nationwide b y strengthening the institutional and technical capacity for education quality improvement planning and management. Sustainable and quality enhancing administration, supervisory and pedagogical practices w i l l be promoted so as to foster greater efficiency and effectiveness in educational service delivery.
The project w i l l consist o f three components: (1) Enabling Equitable Access to Education, (2) Supporting Education Quality Improvements and (3) Assistance to the Education Sector Support Program.
Component 1: Enabling Equitable Access to Education (US$18.95 million)
1.1 Expanding educational facilities in poor and underserved areas (US$12.07 million). Only 34 percent of communes have lower secondary facilities. The proposed activity would support the ESSP 2004-08 Education Facilities Development Program, providing lower secondary schools in communes without them, prioritizing communes with: (i) immediate need of schools according to student flows; (ii) readiness o f Government to provide teachers to these schools; (iii) expressed demand for schools by communities; (iv) capacity at the community level to assist with the day-to-day supervision o f school construction, (v) highest poverty incidence, and (vi) no existing lower secondary school in the commune. Where needed and cost-effective, the program w i l l also complete incomplete primary schools. This i s an actionable measure in the NPRS.
The MoEYS preparation staff analyzed student enrollment projections and conducted a field survey to determine facility needs for the next five years. Community consultations as well as spot checks to appraise land availability were also carried out in the process o f project preparation. New classroom construction w i l l largely take place within the premises of existing primary school campuses, expanding educational provision in these sites to grade 9. In a minority o f sites (approximately 20-25 percent), classroom construction w i l l take place in new sites on vacant and idle land owned b y the Government that i s free from all encumbrances, habitation, dispute, claim or controversy. The use o f the land wil l neither require a resettlement plan nor a resettlement framework.
The civ i l works project i s based on a demand and supply analysis. Facility construction targets w i l l be reviewed on an annual basis and adjusted accordingly throughout the l i fe o f CESSP, taking into consideration the above mentioned criteria, i.e., student flow-through, staffing availability, community demand, implementation ability and absorptive capacity related issues.
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A standard Ministry school design wi l l be adopted for the school facilities program. However, a more cost-effective school construction design may be implemented in certain localities, such as remote area communes. The technical specifications of the standard Ministry school design have been reviewed by an IDA mission in May 2002 and found to be acceptable. Civ i l works w i l l include latrines and wells. Schools w i l l also be supplied with furniture, a basic set of educational materials, library books and relevant instructional equipment. Teachers and principals w i l l receive relevant professional development opportunities (see Component 2.1). Where appropriate, a community contracting approach to school construction w i l l be espoused, following the procedures and lessons learned from the Flood Emergency Rehabilitation Project (FERP). In addition, a bi-annual water inspection i s being recommended for school wells to improve school sanitation. Water tanks can also be considered as an alternative to wells.
Unit costs have been estimated at US$30,000 per building (five classrooms, three latrine cubicles, a well, and furniture). A small amount o f funds wi l l be reserved for school maintenance costs during the l i f e of the support project. Appropriate supervision provisions throughout the construction cycle w i l l be built into the procurement methods and documents to include provincial engineers and local engineer consultants as well as the involvement o f stakeholders at the school and commune level. Some training programs for school personnel, students and communities w i l l be conducted throughout the l i fe o f the project to foster sanitary awareness, promote environmentally friendly schools, prevent the spread of diseases and reduce maintenance costs .
The above budget w i l l allow CESSP to construct 1,500 and up to 2,000 classrooms during the l i fe o f the project. ADB has proposed to support the construction of a similar number of classrooms during the same period.
Civ i l works w i l l be closely coordinated and jointly managed with the Asian Development Bank, as currently practiced under FERP, taking into consideration the intended program of support from other international partners.
1.2 Reducing access barriers for disadvantaged children (US$6.88 million). Increasing the number o f schools alone w i l l not suffice to expand education participation, particularly among the lowest poverty quintiles. Demand-side incentives have been widely recognized in recent years as a means to lower the direct and opportunity costs to education. The provision of targeted incentive schemes for disadvantaged children i s an actionable measure under the NPRS to foster universal basic education and i s operationalized in the ESSP 2004-08 under the Secondary Scholarships for the Poor Program.
MoEYS seeks to scale up i t s existing scholarship program (funded b y an ADB Japan Fund for Poverty Reduction (JFPR) grant) to increase enrollment and schooling opportunities, especially for poor girls and ethnic minority children. Preliminary analysis o f MoEYS data (conducted under a Poverty and Social Impact Analysis grant) suggests that this program did indeed contribute to an increase in girls' enrollment in program schools, although the analysis also suggests that there i s considerable scope to enhance i t s impact.
The following principles w i l l guide the development o f the CESSP Scholarship Program:
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Learn from earlier programs Harmonize with other programs with an eye to a national program Ensure that all children who enter the program can complete lower secondary schooling under the program Effectively target the poorest children with an appropriate incentive size Closely monitor the performance o f the program and potentially adjust i t s design to maximize impact
Leaming from earlier programs. A partnership with the JFPR implementation team (MoEYS/ADB/UNICEF) was established to work collaboratively in an evaluation effort o f that program’s performance. Scholarship application forms for the 2003-04 academic years have been collected and computerized for analysis. A follow-up field survey under implementation w i l l allow an analysis of whether JFPR scholarship recipients are more l ikely to have enrolled, attended and completed schooling than non-recipients. As lessons are learned from this and other ongoing monitoring and evaluation exercises, adjustments to program design w i l l be accommodated.
Harmonizing with other programs with an eye to a national program. CESSP wi l l adapt the procedures and guidelines for implementation currently being piloted under PAP12, JFPR team and the Belgian Technical Cooperation (BTC) scholarship programs, with some modifications based on past experience.
At the request of MoEYS, CESSP w i l l finance continuing scholarships for students who w i l l have been receiving aid under JFPR when that project closes (i.e., grade 9 recipients in 2007/2008) and those who are receiving scholarships under the B T C program when that project closes (i.e., grade 8 and 9 recipients in 2007/2008 and 2008/09) until they complete lower secondary schooling (without repeating a grade).
Ensuring that all children who enter the program can complete lower secondary schooling under the program. In order to avoid the problem o f scholarship recipients being deprived o f funding as they progress through the education system, CESSP wi l l not finance any new grade 7 scholarship students in 2008/2009 or in 2009/2010. I t i s expected that the PAP-funded program w i l l assume responsibility for scholarship financing nationwide o f new student intakes starting in 2008.
EfSectively targeting the poorest children with the appropriate incentive. To improve the cost- effectiveness of scholarships, and build on the lessons learned from the JFPR and B T C projects, the CESSP scholarship program w i l l use a slightly modified selection process. Eligible secondary schools w i l l be selected as those schools in the poorest communes. Schools already covered under PAP12 w i l l not be eligible. As in the JFPR and B T C projects, students w i l l complete an application form in order to be considered for the CESSP scholarship programs. The questions on the forms and the scoring procedures w i l l be based on analysis of household surveys in order to develop models that best predict children at risk o f dropping out. The scoring process w i l l be carried out by the L M C in close collaboration wi th intensive technical assistance in order to ensure accuracy and transparency in the selection process.
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The poorest children in each feeder primary school w i l l be selected, following a rank order predetermined by a “Drop-out Risk Score” based on answers to a standardized application form. There w i l l not be set aside quotas for boys and girls, but the Drop-out Risk Index w i l l provide a slight advantage to girls. In L S S where 200 or fewer students are currently enrolled in grade 7, 30 scholarships w i l l be awarded, while 50 scholarships w i l l be awarded in L S S where more than 200 students are enrolled in grade 7. In order to allow for the fact that poorer children might need a larger incentive to enroll in and complete schooling, the scholarships are initially set at $60 and $45 per year. An equal number of higher and lower level scholarships w i l l be distributed within a school. Children with the highest poverty ranking in each L M C wi l l receive higher amounts. The project w i l l cover 100 schools in the first year o f operation and w i l l expand to at least an additional 150 schools in the second year of operation.
Closely monitor the performance of the program and potentially adjust its design to maximize impact. Rigorous monitoring and evaluation w i l l be integral to the CESSP scholarship program. This w i l l be necessary both to ensure that the program i s reaching the right students, but also to allow for learning-and possibly adjustments-in subsequent years and as the program grows. I t w i l l be particularly important to monitor that the program i s operating efficiently and cost- effectively in terms o f reaching the poorest and most vulnerable children and in terms of motivating them to enroll in school.
Component 2. Supporting Education Quality Improvement Planning and Management (US$5.27 million)
2.1 Strengthening decentralized quality education service delivery (US$4.62 million). The quality and efficiency o f education service delivery at both the primary and lower secondary levels i s poor, stemming from scarce resourcing, insufficiently trained teachers and principals, inadequate professional development opportunities, deficient school performance monitoring systems and weak local capacity to take responsibility for school improvement at the facility, district and provincial levels. This component w i l l focus on strategic decentralized quality improvement interventions in order to encourage right-age enrollment, retention of students in upper primary, transition to and retention in lower secondary education as wel l as enhancements in student learning.
The key programmatic areas include: (a) improving school effectiveness through local school/cluster-based training oriented towards “child-friendly” teaching and learning practices; (b) sponsoring school-based (principals) and school-support systems (district and provincial officers) to focus on service delivery improvements and nurture peer reflective networks; (c) supporting stronger school governance, including school development planning, local accountability mechanisms and community involvement; and (d) enhancing the results- orientation o f education service delivery. These interventions are included in the ESSP 2004-08 Primary and Lower Secondary Education Access, Quality and EfSiciency work-program, through fostering appropriate utilization o f school operational budgets and strengthening program monitoring interventions. They also complement the ESSP 2004-08 Continuous Teacher Development work-programs b y supporting the objectives la id out in i t s education management development and continuous teacher development/INSET objectives. Finally, they are consistent
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with the ESSP goals for Institutional Development and Capacity Building, a goal endorsed b y Government and donors in the December 2004 Consultative Group meeting.
Improvements in service delivery and educational quality w i l l be catalyzed under CESSP through the following activities:
Support the development, implementation and monitoring o f school development plans. Provincial/district/cluster level supervision and support w i l l enable demand-driven capacity building and inform lessons for policy dialogue.
Develop national teacher professional standards in order to set clearer learning focused behavioral goals for teacher training programs.
Foster in-service training to improve the effectiveness o f teaching and learning in the classroom through “child friendly” methodologies. Training w i l l be partially provided b y Teacher Training Colleges’ (TTC) staff. The Teacher Education Department and TTCs w i l l work collaboratively with provincial and district support staff to develop and conduct in- service training through a simple “packaged” program planned centrally and delivered locally. Principals w i l l receive leadership training.
Promote the recruitment and upgrading of lower and upper secondary graduates from disadvantaged provinces to TTCs and during vacation periods in order to ensure an adequate supply of locally-recruited teachers in rural and remote area schools.
Encourage community mobilization for educational programs, more active commune participation in school governance, parental voice in school affairs and local accountability through the dissemination o f information on school effectiveness.
Assistance w i l l be concentrated, but not necessarily exclusively, in ten provinces/municipalities (Banteay Meanchey, Battambang, Kampong Som, Kampot, Kep, Koh Kong, Kratie, Mondulkiri, Pailin, Ratanakiri) that have received no or very limited overseas development aid in past years, especially targeting districts with high poverty incidence and poor education outcome indicators. In these provinces, the problem of low capacity i s more acute than in much o f the rest o f the country. A baseline and final project impact evaluation survey w i l l be conducted over the implementation period to appraise changes in school effectiveness conditions.
This component w i l l be implemented in close coordination and partnership wi th other international partners and NGOs involved in this field in the remaining provinces. An operational working group under the leadership o f MoEYS w i l l serve as a forum to jo int ly review, harmonize and mainstream successful experiences. The objective o f this group would be to strengthen the Ministry’s education quality enhancement programs.
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Organization Belgium Technical Cooperation (BTC) Save the Children Norway (SCN)
UNICEFKID A/KAPE I Rieng, Stung Treng and Odtar Meanchey I Battambang, Kampong Cham, Kampong Chhnang, Voluntary Service Overseas (VSO)
Area of operation Kampong Cham, Odtar Meanchey and Siem Reap. Kampong Cham, Kampong Chhnang, Odtar Meanchey, Phnom Penh, Preah Vihear, Pursat and Siem Reap. Kampong Speu, Kampong Thom, Prey Veng, Svay
I I KamDot. Kandal. PrevVeng. Ratanakiriand Takeo
A School Monitoring Form w i l l be utilized to collect data over the l i fe o f the project and appraise the impact o f CESSP interventions on schooling and service delivery practices.
A proposed Japan Social Development Fund grant focusing on mainstreaming inclusive education wil l, if approved, provide complementary interventions targeting disabled children.
2.2 Establishing a national assessment monitoring system (US$0.65 million). MoEYS has set as an objective to establish a National Assessment System (NAS) in order to strengthen sector performance monitoring. A NAS wi l l be a mechanism to evaluate education quality and student achievement on a continuous basis at the primary and secondary levels through a standardized test. In particular, the NAS w i l l (a) appraise student competencies, (b) report on variables associated with student achievement, (c) inform policy development and (d) provide pedagogical inputs for enhancing teaching and learning practices. This activity i s included the ESSP 2004-08 work-program under strengthening program monitoring in i t s Primary and Lower Secondary Education Access, Quality and Efficiency work-program.
The assessment program w i l l be a cooperative effort, housed in the Examinations Office and managed in collaboration with the Testing and Evaluation Office of the Pedagogical Research Department (PRD), the Inspectorate General o f Education and other relevant line departments. The assessment of Khmer language and mathematics performance w i l l be implemented on a nationwide sample of students in grades 3,6 and 9. The possibility of following a cohort o f students w i l l be explored at mid-term review.
Activities to be conducted include test creation and validation, sampling and test application, data processing and analysis, and information dissemination and utilization. An MoEYS team has been participating in an international training program on student achievement measurement to gain the necessary expertise for program implementation and reduce the dependency on international technical support. Cambodia w i l l be participating in a regional capacity building program on student assessment for the East Asia region.
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Component 3. Assistance to the Education Sector Support Program (US$3.00 million)
This component would address the implementation o f additional selected interventions under the ESSP, to be agreed wi th IDA during project implementation. Investments made under this component wi l l be conditional to the presentation and approval o f an implementation plan for proposed activities. This would include a detailed spending plan for equipment, training and technical assistance, c i v i l works and materials, terms o f reference for consultancies, arrangements for component leadership and monitoring and evaluation requirements.
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Annex 5: Project Costs
CAMBODIA: Education Sector Support Project
Local Foreign Total Project Cost B y Component and/or Activity us $million us $million us $million
Enabling Equitable Access to Education for Disadvantaged Children
Expanding Education Facilities in Poor and Underserved Areas Reducing Access Barriers for Disadvantaged Children
Supporting Education Quality Improvements Strengthening Decentralized Quality Education Service Delivery Establishing a National Quality Assurance and Monitoring System
Assistance to the ESSP
Project Management
Total Baseline Costs Physical Contingencies Price Contingencies
8.09 2.82 10.91
6.08 0.64 6.72
2.95 1.15 4.10
0.21 0.36 0.57
1.50 1.50 3.00
1.52 1.04 2.56
20.35 7.5 1 27.86 0.62 0.30 0.92 0.86 0.45 1.31 -
Total Project Costs' 21.83 8.26 30.09
Total Financing Required 21.83 8.26 30.09
The Development Project i s tax-exempted by the Royal Government o f Cambodia. The share o f project costs for the IDA Credit i s 26.6 percent and for the IDA Grant i s 66.5 percent. The share for the RGC i s 6.9 percent.
1
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Annex 6: Implementation Arrangements
CAMBODIA: Education Sector Support Project
Implementation Arrangements MoEYS w i l l assume overall responsibility for coordination and implementation o f the project, including procurement, disbursement and financial management. An inter-ministerial Steering Committee w i l l be responsible for overall policy direction and project oversight, under the Chairmanship of a MoEYS Secretary o f State and independent from CESSP project management.
The project w i l l be implemented at the national, provincial, district and school levels over a period of five years. A Project Manager, in the Directorate General o f General Education, w i l l have the overall day-to-day responsibility for the management and coordination of project activities. Project implementation w i l l be carried out by existing MoEYS departmental staff, including Materials. and State Property, Primary Education, Secondary Education, Examinations Office, Pedagogical Research Department, Teacher Education, Teacher Training Colleges and Provincial and District Education Offices.
A small coordination office w i l l be set up at the central level in order to coordinate various project activities under the three components in 24 provinces, with support from a small external technical team. The core staff w i l l consist o f a Project Manager, a Chief Technical Advisor, a Project Facilitator, a Procurement Officer, a Finance Officer and several administrative staff w i l l support MoEYS in project implementation. The Procurement Officer w i l l be assisted b y at least two procurement assistants. They w i l l support tasks relating to procurement and disbursement activities, maintaining a sound financial management system, monitoring and evaluating project objectives, facilitating technical assistance, providing training and guidance to ProvincialDistrict Education Offices and schools, and coordinating interactions with related government agencies, international partners and NGOs. Appointment of key staff to positions, such as the Project Manager, the Project Facilitator, the Finance Officer and the Procurement Officer wi l l be submitted to the Bank as a condition of Effectiveness. The external TA position o f Chief Technical Advisor should be appointed as soon as possible when Retroactive Financing i s approved.
The school construction team consists of two advisors, several construction engineer consultants, regional engineers as well as local engineer consultants (one per every ten sites) responsible for supervising c iv i l works. Other national and international consultants would also provide guidance to Ministry line departments, POEs and DOES on activities such as administrating the scholarship scheme, developing student assessment tests and conducting training and workshops.
This project i s similar to EQIP and FERP in terms of procurement and disbursement arrangements. Most procurement activities-including the hiring o f consultants and competitive bidding-will be carried out at the national level. Some o f the local training for POEDOE, TTC and school staff, community representatives, scholarship scheme administration, student assessment testing and school construction supervision w i l l be handled at the provincial and district levels. Community contracting for small works, if appropriate, w i l l be managed at the
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local school level with the help o f provincial engineers and local engineer consultants. All preparation o f bidding documents as well as evaluation for competitive bidding of c iv i l works contracts w i l l incorporate the input of province level engineers and representatives from district or school levels.
A Project Implementation Plan has been prepared and reviewed during Negotiations. The PIP includes flow charts for channel of complaints and procurement process steps and responsibilities, including internal approval, selection procedures for consultants, procurement methods for goods and works, model standard bidding documents and model contracts.
Annual work programs, including a procurement plan, w i l l be prepared at the national level after consolidating inputs from provincial, district and school levels.
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Annex 7: Financial Management and Disbursement Arrangements CAMBODIA: Education Sector Support Project
Financial Management Assessment An assessment o f the financial management arrangements o f the Ministry o f Economy and Finance (MoEF) and Ministry o f Education, Youth and Sport (MoEYS) has been conducted b y a FMS Specialist during project preparation and the arrangements have been found to be satisfactory and acceptable.
MoEYS has had previous experience in satisfactorily implementing Bank projects and has strengths in developing financial management processes, procedures and controls. The financial accounting and management arrangements are considered satisfactory. The proposed finance staff i s experienced in project accounting, financial management monitoring and reporting. Some weaknesses were identified in relation to: (i) appointing finance staff for the project within MoEYS, (ii) training of the finance staff in the project financial arrangements and systems, and (iii) developing a project specific Finance Manual, including Financial Monitoring Reports (FMRs). The Financial Management Action Plan w i l l address these weaknesses and ensure that capacity i s adequate for project implementation.
The project w i l l use the traditional transaction based disbursement method with separate Special Accounts for managing the IDA credit and IDA grant funds. Quarterly financial management reports w i l l be produced to monitor and evaluate project financial performance against annual work plans and budgets. A separate Counterpart Funds Account w i l l be used for managing the Government counterpart funds.
Annual financial statements w i l l be prepared b y the CESSP. The financial statements w i l l be audited in accordance with international auditing standards by an independent auditor. The auditor’s reports together wi th management letter w i l l be made available to IDA within six months o f the close o f the financial year.
The World Bank Division (WBD) of the MoEF, responsible for the monitoring and supervision of the IDA portfolio on behalf of the RGC, i s experienced on IDA Guidelines and policies on disbursement and financial management. This unit coordinates the replenishment o f special accounts as well as counterpart funds.
Risk Assessment
Country Risks The World Bank Country Financial Accountability Assessment (CFAA) conducted in 2002 concluded that the legislative and regulatory framework governing public finances i s generally acceptable, except for the control function. However, implementation o f public expenditure i s very weak resulting in lack of transparency and a high level o f risk concerning the reliability of public expenditure management. The Assessment also found that the financial management systems and procedures cannot be relied upon to provide assurance that public funds are used only for authorized purposes, and that despite multiple controls and the centralized nature of the
40
Public Expenditure system, weak financial practices pose serious fiduciary r isks. The CFAA identified systematic weakness in the control environment, National Treasury Operations and internal and external auditing capacity.
The inherent r i sks are mitigated in this project by sound financial management arrangements with strong internal controls, a highly motivated and professional staff that has worked on World Bank programs since 2000, reporting of expenditures comparable to base l ine data, particularly for c iv i l works, quarterly financial management reports and independent audits of annual financial statements.
Control Risks The CESSP i s exposed to potential r isks involving the project coordination office’s consultants assuming authority and responsibility for every aspect of the project, thereby exposing i t to possible risks of collusion and corruption. To mitigate this risk, (i) all payment orders w i l l be signed by the Project Manager and the Finance Officer, (ii) Technical Consultants and the Project Manager w i l l certify that the goods have been delivered and the services have been rendered before the payments are made and (iii) regular financial monitoring reports w i l l be presented to the Association. In addition, the Procurement Officer w i l l also be involved in the development o f technical specifications for bidding documents, bid opening and evaluation. Moreover, there w i l l be segregation o f duties among the project coordination staff, Le., the functions of implementing and overseeing w i l l not reside with the same staff. Project financial statements w i l l be audited by an external independent auditor acceptable to the World Bank. The project w i l l be regularly reviewed b y the MoEYS’s Internal Audit.
Recruitment and retention of local qualified technical and finance staff can pose a problem. To mitigate this, the Project Manager w i l l ensure that staff hired or assigned for this project w i l l have proper qualifications in procurement, project management and financial management and that proper and regular training i s provided and that standard systems and procedures are engaged throughout the provincial, district and school level project activities.
Although there i s no substantial control r i sks associated with this program, the overall FMS risk i s s t i l l rated high due to the country environment.
Financial Management Implementation Arrangements Detailed implementation arrangements and procurement arrangements are described in Annex 6 and Annex 8 respectively. MoEYS w i l l be responsible for the overall implementation, financial management, monitoring and evaluation o f the project, in coordination with MoEF. At the national level, a Project Manager w i l l be responsible and accountable for the oversight o f day-to- day implementation of the project, including procurement and disbursement activities, maintenance of a sound financial management system, monitoring and evaluation o f project objectives and progress, facilitating technical assistance, providing direction, training and guidance to provincial/district education offices and coordination with related government agencies, international partners and NGOs.
The Project Manager, wi th assistance from a small technical team at the national level, wil l be in charge of project financial management, including accounting functions and reporting activities. A computerized accounting system in conjunction with manual procedures w i l l be tailored to suit
41
the project’s accounting and financial management reporting requirements. The system wi l l support control and reporting of financial transactions and timely maintenance of accounting records, including the receipt and disbursement of credidgrant funds, commitments and related financial events.
The project has the following strengths in financial management: 0 CESSP i s similar to EQIP and FERP that the MoEF WB Division and MoEYS have
implemented satisfactorily in recent years. Both projects demonstrated sound implementation capacity and sound financial management, timely financial management reporting and had unqualified annual financial statements with no significant audit queries. The key financial positions in the MoEYS national technical team for the project w i l l be staffed b y officers wi th previous World Bank project experience, particularly in relation to procurement, financial reporting and disbursement procedures. A proven project computerized accounting system w i l l be used as the basis for managing the finances of the project. The proposed finance staff i s familiar wi th the accounting system and project procedures.
0
In relation to weaknesses, there i s a risk that the financial management o f the project could be adversely affected if there i s significant finance staff turnover, as Cambodia has a limited number of Certified Public Accountants, accountants and auditors. Also, the project activities w i l l be carried out in 24 provinces. This creates the need to control financial activities at the central, provincial, district and school levels and to ensure that proper processes and procedures are implemented at all levels. Existing MoEYS staff at the provincial, district and school levels w i l l be appointed to carry out project financial activities. As most o f these staff w i l l have no experience with World Bank procedures, there i s a risk o f improper and inadequate financial accounting and management. However, the risk i s mitigated b y the proposed project arrangements that the majority o f financial payments and processing w i l l be undertaken at the central level. Standard procedures, defined forms and records and training o f provincial, district and school staff also w i l l help overcome this weakness.
Staffing The financial staff arrangements at the central level have been determined and w i l l consist o f a Project Finance Officer, two Project Accountants, an Assistant Accountant and a Cashier. The positions statements (TORS) for these positions have been reviewed and found to be acceptable. Appointments to the finance positions w i l l be made by MoEYS by the end of Negotiations to allow sufficient time for training prior to Effectiveness.
At the provincial level, i t i s proposed to use the accountants o f the Ministry’s Provincial Education Offices to provide financial accounting and reporting support to the project. The responsibilities o f the accountants for the project have been defined and include maintaining cash books, accounting and being responsible for the receiving and disbursing project scholarships, training and minor operating funds. The mission strongly recommends that the Ministry use the criteria set out in the Project Provincial Accountant position statements to guide the selection o f staff in the provinces so as to ensure adequate s k i l l s exist throughout the 24 provinces for proper financial accounting and management of project funds. Provincial education office appointments w i l l be identified as soon as possible to allow sufficient time for training.
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An adequate training project for the financial staff of CESSP and other officers involved in financial activities o f the project (Provincial Education Office accountants, Local Management Committee officers, School Committee officers) i s critical to the sound management of CESSP. I t was agreed that the draft training program for the central and provincial finance staff must be agreed b y IDA as soon as possible and that the training for the central and provincial finance staff must be carried out immediately after the final Finance Manual i s agreed and prior to Effectiveness.
Accounting Policies and Standards The project w i l l use a combination o f a computerized accounting system and manual systems which i s acceptable to IDA. The project w i l l use the cash basis of accounting together with supplementary records o f contracts, commitments and assets. The project w i l l use the Government’s financial year, January to December, and the standard currency that w i l l be used in recording project transactions i s U S Dollar. Any transactions expressed in Riel shall be converted into U S Dollar at the exchange rate declared b y the Foreign Trade Bank at the date o f the transaction.
The Chart of Accounts w i l l be established to comply wi th the International Public Sector Accounting Standards (IPSAS) for proper project financial management. I t w i l l be designed to enable data to be captured and classified b y expenditure center, budget heads, project components and disbursement categories. I t w i l l follow the financial accounting and tax regulations issued by the Government as well as the IPSAS.
The Project Finance Manual w i l l set out the applicable accounting policies and procedures, including the format o f FMRs. The Manual i s being based on the draft Standard Operating Procedures o f the Government and the EQIP Accounting Manual of MoEYS’s previous World Bank project, and w i l l include detailed accounting and disbursement procedures. The Finance Consultant has provided a draft of the complete Finance Manual for World Bank review. I t was agreed that the Finance Manual must be agreed with the Bank prior to Effectiveness.
Disbursements Credit and Grant disbursements w i l l be done b y the traditional transaction-based method, including the use of Statement o f Expenditures (SOEs), and b y direct payment. Counterpart funds disbursements to CESSP w i l l be deposited quarterly in the amount of US$lOO,OOO, either by withdrawal application submitted to MoEF for replenishments o f the Counterpart Funds Account or b y direct payment.
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Allocation of Credit and Grant Procedures The Credit of US$8.0 mi l l ion and the Grant of US$20.0 w i l l be disbursed over a period of five full calendar years. The Project i s expected to be completed b y June 30, 2010, and w i l l close on December 31, 2010. The Credit proceeds for c iv i l works i s shown in Table C1, and the allocation of Grant proceeds for each category i s shown in Table C2.
Table C1: Allocation of IDA Credit Proceeds
Expenditure Category Amount in US$ million Financing Percentage Works 8 .O 100%
Total Credit Proceeds 8.0
Table C2: Allocation of IDA Grant Proceeds
Expenditure Category Amount in US$ million Financing Percentage Goods 1.7 100% Consultant Services 3.4 100% Training 3.6 100% Scholarships 5.2 100% Operating Costs 2.2 100% Goods, Works and 3.0 100% Services
Unallocated under Component 3 0.9
Total Grant Proceeds 20.0
Retroactive Financing Retroactive financing w i l l be available for eligible expenditures in all categories (except scholarships) incurred after Negotiations (February 18,2005), up to a maximum amount of USD400,OOO.
Use of statements of expenditures (SOEs) Disbursement from the IDA Credit and IDA Grant w i l l be supported b y full documentation and signed contracts for: (i) works and goods contracts valued greater than and equal to US$lOO,OOO per contract; (ii) firm consultant contracts valued greater than and equal to US$lOO,OOO per contract; and (iii) individual consultant contracts valued greater than and equal to US$50,000 per contract. Disbursement for all other expenditures including training, scholarships and incremental operating costs w i l l be disbursed against SOEs with supporting documentation retained in the project coordination office and designated Provincial Education Offices, and w i l l be made available for IDA review upon request.
Special Accounts To facilitate disbursement for the IDA Credit and IDA Grant, the project coordination office w i l l open two Special Accounts (SA) in US dollars at the National Bank o f Cambodia, on terms and
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conditions satisfactory to IDA. The SAs should include appropriate protection against set-off, seizure and attachment.
A 7
oods, Services
The IDA Credit SA wi l l cover i t s share of eligible Works disbursement category as listed in Table C1. As the construction w i l l be implemented within four years and can only be less than 10 percent o f the total Credit amount, the IDA Credit SA w i l l have an authorized maximum allocation of US$600,000. The initial amount of US$300,000 w i l l be withdrawn from the Credit amount and deposited into the Credit SA (to be determined at Negotiations).
Scholarships Operating Costs
The IDA Grant SA, which w i l l cover eligible expenditures in all disbursement categories as listed in Table C2, would have an authorized maximum allocation of US$800,000. The initial amount of US$400,000 wi l l be withdrawn from the Grant amount and deposited into the Grant SA (to be determined at Negotiations).
Provincial Teacher Training Colleges
Consultants, Suppliers Education Office
Funds Flow
School Community Committee
Civil Works Contractors
I
MEF
Counterpart Funds
I
Special Account - Special Account - Counterpart Funds
Local Management Committees
Local Small Works
Contractors
Students
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MoEF and MoEYS wi l l establish, maintain and operate two Special Accounts (one for the credit and one for the grant funds) in U S dollars at the National Bank of Cambodia under conditions acceptable to the World Bank. The Project Manager, with the assistance o f the Finance Officer, w i l l be responsible for administration of the Special Accounts and all CredidGrant disbursements related transactions for the project. Two signatures w i l l be required on any withdrawal application-that of one official from MoEYS and one from MoEF. Withdrawal applications w i l l be approved b y MoEF prior to forwarding to the World Bank.
MoEYS and MoEF wi l l establish a separate Government Counterpart Fund Project Bank Account at the National Bank of Cambodia for the Government counterpart obligations. As confirmed by the MoEF, an initial advance w i l l be deposited into the Project Bank Account at the time of Project Effectiveness (timing to be agreed during negotiations) and the frequency of replenishment would take place in accordance with the requirements set out in the Annual Work Plan, Annual Budget and the balance remains in the Project Bank Account at any point of time. The aim i s for the Project Bank Account to be replenished monthly on application to the MoEF. Petty cash flows w i l l be operated b y the provincial education offices and district/schools in accordance with government regulations for operating expenses.
Financial Reporting and Monitoring The project w i l l produce quarterly Financial Monitoring Reports (FMR) in accordance with the FMS Manual. The FMRs wi l l cover project progress and variance analysis, financial statements on source and use o f funds, project financial position, expenditures and physical progress compared with plans, procurement and contract monitoring reports. FMRs should be submitted to the Association quarterly, with the first report due 45 days after the end o f the first quarter after Project Effectiveness. The format o f the FMRs which w i l l be included in the Project Finance Manual was agreed upon during Project Negotiations and w i l l be incorporated into the final project Finance Manual.
Annual financial statements w i l l be prepared in accordance with Financial Reporting under the Cash Basis o f Accounting. The format o f the annual financial statements w i l l be agreed during Project Negotiations. The statements w i l l include: (i) a statement o f cash receipts and payments; (ii) a balance sheet; (iii) the accounting policies adopted and explanatory notes including a reconciliation of the project cash receipts with the amounts from each funding source; (iv) a statement o f fixed assets; (v) reconciliations o f the special accounts; (vi) a summary o f SOE withdrawals; and (vii) a management assertion that Bank funds have been used in accordance with the intended purposes. The financial statements w i l l include the current reporting periodcumulative project financial figures together with comparative figures f rom the previous financial period.
Internal Audit To address financial r i sks and to provide management with advice on the effectiveness o f financial systems and internal controls of the project, the Pre-Appraisal Mission in September 2004 recommended that the Ministry make arrangements for the project to be included in the program o f review by the MoEYS Internal Audit function and that the audit findings from reviews o f the project be provided to the Project Steering Committee in addition to the project
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management. MoEYS w i l l formalize the arrangements for regular audits o f the CESSP by the Ministry's Internal Audit.
Design and agree on Project FMRs (part o f Finance Manual)
External Audit The annual financial statements w i l l be audited by an independent auditor acceptable to the Association on terms o f reference also acceptable to the Association. The audit TORS wi l l cover both the annual audit of the financial statements and a review o f internal controls and compliance with the project agreements. The auditor also w i l l be required to submit a management letter providing an assessment of the financial management system including the adequacy of internal controls. All implementing bodies would provide the auditor with access to project-related documents and records, as required b y the auditor.
MoEYS B y the end of Negotiations Februarv 18.2005
The'annual financial statements and audit reports are required to be submitted to the Bank within six months of the end o f the financial year.
Submission o f the final Finance Manual and training program
Agreed TOR for external audits
Install the project chart o f accounts and FMRs into the computerized accounting system
Supervision Plan Supervision should be carried out every six months, covering the MoEYS central coordination office and randomly selected Provincial, District and School activities (as considered necessary). The supervision missions should evaluate the quality of budgets, project financial monitoring and management review of financial reports, quality of FMRs, relevancy of the Financial Management Manual, Special Account operations, internal controls, work and document flow and quality o f financial records. The missions would conduct random reviews of the Special Accounts, SOEs, compliance with the financial covenants, disbursements, physical progress vs. financial disbursements and changes in procedures related to financial management arrangements.
MoEYS Before Effectiveness
MoEYS B y the end o f Negotiations February 18,2005
MoEYS Before Effectiveness
Financial Management Action Plan
Training o f Project Finance Officer and Accountants
Action I Responsible I Completion
MoEYS Before Effectiveness
1 B y December 3 1,2004 I MoEYS Draft Finance Manual and training program
I Appointment o f Finance Staff I MoEYS I Before Effectiveness 1
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Annex 8: Procurement
C A M B O D I A : Education Sector Support Project
General Procurement for the proposed project would be carried out in accordance with the World Bank’s Guidelines: Procurement under IBRD Loans and IDA Credits dated May 2004; and Guidelines: Selection and Employment of Consultants by World Bank Borrowers dated May 2004, and the provisions stipulated in the Legal Agreement. The general description o f various items under different expenditure categories are described below. For each contract to be financed b y the Credit and/or the Grant, the different procurement methods or consultant selection methods, estimated costs, prior review requirements and time frame are agreed between the Borrower and the responsible Bank team in the Procurement Plan. The Procurement Plan w i l l be updated at least annually or as required to reflect the actual project implementation needs and improvements in institutional capacity.
Procurement of Works (US$8.89 million equivalent): Works i s the only expenditure under the project that w i l l be financed b y the IDA Credit. RGC w i l l contribute about 10 percent of the total expenditures. For ease o f implementation, each individual school w i l l be fully financed either from the IDA Credit or RGC funds at 100 percent. C iv i l works fully financed b y RGC funds wi l l match the agreed upon RGC counterpart financing levels and disbursement schedule detailed in the legal agreement.
Works w i l l include the renovation and/or construction o f about 300 lower secondary schools (about 1,500-2,000 classrooms) and may include incomplete primary schools on existing sites in 23 provinces. Each school site under the project w i l l be provided with one well or water tank and at least one building consisting o f five classrooms with three cubicles o f toilets. No international competitive bidding procedures are anticipated for school construction. Due to the small contract amounts ranging from US$30,000 to US$300,000, different phasing o f construction and scattered location through 23 provinces calls for bidding are unlikely to attract international contractors. Sample bidding documents developed b y the FERP wi l l be revised and used for all national competitive bidding (NCB) procedures for school construction wi th additional information on complaint handling and publication o f contract award as well as technical specification clauses dealing with environmental safeguard issues (see Annex 10) satisfactory to the Association. for the following thresholds and in remote areas, when appropriate:
,
Shopping and community participation procedures w i l l be used
For small works contracts valued at less than US$50,000 each, shopping procedures wil l be used with comparisons from at least three qualified contractors or, for instance in remote areas where there are limited contractors available, community contracting (CC) procedures could also be used. CC documentation and procedures are the same as in FERP with minor revisions specific to CESSP acceptable to the Association. The revised draft CC Operational Manual(0M) was submitted to the Association for review at the end of Negotiations and the final CC OM wil l have to be submitted and acceptable to IDA before the start of the CC, and sewed as a legal covenant.
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For small works contracts valued between US$20,000 to US$50,000 per contract procured under shopping procedures:
(i) the Invitation for Quotations shall be advertised in at least one provincial and national newspaper, a minimum of ten days shall be provided for the preparation and submission of quotations, and potential bidders shall be able to acquire, free o f cost, the Request for Quotation documents b y mail or in person up to 24 hours prior to the stipulated deadline for the submission o f quotations;
(ii) quotations shall be opened in public immediately after the stipulated deadline for submission o f quotations. Bidder’s representatives and the project’s beneficiaries f rom the concerned local community who choose to attend shall be allowed to be present. The name o f the bidder and total amount o f each bid, including discounts, shall be read aloud and recorded. Bids received after the deadline for quotation submission shall be returned to the bidders unopened. Immediately after completion o f the bid opening proceedings, a copy o f the bid opening record shall be posted at a prominent location, accessible to the public, outside the office o f the concerned procuring entity and also on local community bulletin boards; and
(iii) the following information on contract award shall be published on a free and open access website when i t becomes operational or on another means o f publication acceptable to the Association: (a) name o f each bidder who submitted a quotation; (b) quotation prices as read out at quotation opening; (c) name and evaluated price of each quotation that was evaluated; (d) name of bidders whose bids were rejected and the reasons for their rejection; and (e) name of the winning bidder, price i t offered as well as the duration and summary scope of the contract awarded. This publication shall be updated quarterly.
Procurement of Goods (US$1.99 million equivalent): About 78 percent o f the goods contracts are for classroom furniture (including blackboards and teachers’ stations) and education and instructional materials (including teaching aids, science k i t s and library books for LSS). Other goods needed for the project consist of six vehicles and two dozen motorcycles (including helmets), computers and printers, photocopiers and small office equipment.
Due to the same reasons stated under school construction above-scattered location of school sites and different phasing o f the school construction-as well as abundance o f local school furniture suppliers offering favorable prices, i t i s unlikely that these classroom furniture contracts w i l l attract international contractors. Therefore, no ICB i s anticipated for the procurement o f school furniture.
For goods contracts valued at and above US$lOO,OOO each, international competitive bidding procedures w i l l be followed using the Bank’s SBD. Domestic preference w i l l apply for all ICB contracts. For goods contracts valued less than US$lOO,OOO each, national competitive bidding procedures w i l l be followed using national model bidding documents acceptable to the Association. The model NCB bidding documents w i l l include agreed arrangements for complaint handling and publication o f contract award. For goods contracts valued less than US$50,000 each, shopping procedures w i l l be used. Comparison of at least three price quotations w i l l be required, where desired goods are ordinarily available in country wi th
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competitive prices. Requests for price quotations have to indicate the description and quantity of the goods as well as the expected delivery time and place. The same advertising, bid opening and publication o f contract award procedures described under the shopping procedures for small works apply here for goods contracts valued between US$20,000 to US$50,000 per contract.
Some off-the-shelf standard items, such as vehicles and motorcycles, valued less than US$lOO,OOO per contract may be procured directly through UN agencies (IAPSO) as appropriate.
Selection of Consultants (US$3.54 million equivalent): Most consultant services needed under the project are international and national individual consultants. They are needed in the areas of project management, student assessment, teacher training, technical planning as well as institutional capacity building. Individual consultants w i l l be selected on the basis of consultant qualifications consistent with Section V of the Consultant Guidelines. All sole-source individual consultant selections, regardless o f contract value, are subject to the approval o f the Association.
Firm contracts needed under the project are: (i) auditing services, cumulatively valued at about US$25,000 (the first annual audit services contract amount i s estimated to be approximately US$8,000, and could be extended based on satisfactory performance), which w i l l be selected using the modified Least Cost Selection (LCS) method7, (ii) school effectiveness and scholarship scheme monitoring and evaluation, valued at about US$120,000, could also be contracted to a consulting firm, if appropriate, and w i l l be selected using the Selection Based on Consultant’s Qualifications (CQS). The water inspection for school wells or water tanks could be carried out by various Provincial Health Departments as service delivery contracts to reimburse actual costs only.
Incremental Operational Costs (US$3.52 equivalent, including RGC staff salary supplementations): Due to the large coverage area across 24 provinces and emphasis on decentralized administrative setup and implementation (community contracting for c iv i l works, scholarship scheme, demand-driven in-service teacher training activities and student assessments), the incremental operating costs under the project are justifiably high (about 11.7 percent o f the total project costs) compared with centralized implementation in other I D A - financed projects. For the purpose of project sustainability, incremental operating costs w i l l be separated into two amounts o f US$ 1.20 mi l l ion (Le., 34 percent of total incremental operating costs) and US$2.32 mill ion (i.e., 66 percent). The former w i l l be financed 100 percent by the Royal Government, covering supplementary salaries of MoEYS staff taking additional responsibilities for project implementation, and office provisions (including utilities). The latter w i l l be financed 100 percent b y the IDA Grant, covering supervision and per diem expenses, communication and internet expenditures, office consumables, public disclosure o f procurement activities and bank account charges under the project. All w i l l be availed o f in accordance with government administrative procedures found acceptable to the Association.
In order to safeguard against leakages, quarterly supervision plans acceptable to IDA w i l l be included in the work program.
’ Audit firms in Cambodia are pre-qualified by the Association, and their services are quite basic and following standard procedures. A simple technical proposal wi l l be accepted before the public opening o f financial proposals.
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Others Training (US$3.72 million equivalent): Most training activities are local except a few regional study tours. They relate to teacher in- and on- service training; workshops and seminars for school staff, administrators, MoEYS management and technical staff; and local community participation, including supporting committees for school construction and scholarship selection and monitoring. Training activities w i l l be included in the annual work program, subject to the approval o f the Association. Some of the local training w i l l involve staff f rom regional and provincial teacher training colleges for in-service and on-service workshops for school teachers. However, only travel expenditures of these TTC staff w i l l be financed b y the IDA Grant.
Scholarships (US$5.43 million equivalent): Scholarships w i l l be awarded in two tiers, Le., US$45 or US$60 per student per year per school. Schools w i l l be selected according to their ranking on a Drop-out Risk Index. These amounts may be reviewed and amended during project implementation with prior consent from the Association. Scholarships w i l l be awarded using agreed selection and implementation procedures, documented in a Scholarship Scheme Operational Manual, based on the ADB-financed JFPR scholarship program. Minor revisions, including draft contracts with school communities and parents, specific to the CESSP and acceptable to the Association w i l l be incorporated. The draft Scholarship Scheme Operational Manual was submitted for review by the end of Negotiations, and the final Scholarship Scheme Operational Manual wi l l have to be submitted and acceptable to IDA before the start of the scholarship program, and serve as a legal covenant.
Education Sector Support Funds for Goods, Works and Services under Component 3 (US$3.0 million equivalent). These funds under Component 3 are to support emerging needs and activities in the ESSP, to be agreed with IDA, within the boundaries o f CESSP project development objectives. Investments made under this component would be subject to presentation of an implementation plan for proposed activities acceptable to IDA which serves as a legal covenant. This would include a detailed spending plan for equipment, instructional materials, training, c iv i l works and consultant services. These funds are grouped under a separate disbursement category under the Development Grant Agreement.
Assessment of the Agency’s Capacity to Implement Procurement An assessment o f the capacity o f the Implementing Agency to conduct procurement actions for the project has been carried out by a Procurement Accredited Senior Operations Officer during two preparation missions in 2003 and 2004, revised during the Pre-Appraisal Mission in September 2004, and finalized during the Appraisal Mission in NovemberDecember 2004.
The organizational structure for implementing the project, the procurement process steps stating the responsible parties and their roles8 and a channel for handling project complaints were reviewed and agreed upon. Selection procedures for consultants, procurement methods for goods and works, model standard bidding documents and model contracts to be procured under
* Including the completion of all internal government approvals before submitting to the Bank for prior review and no objection, after which no subsequent changes shall be made without the Association’s prior concurrence. Contracts subject to post review by the Association wi l l not be submitted to the Association for prior review, except in cases involving alleged fraudulent, corrupt, collusive, or coercive practices.
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the project were also reviewed and agreed upon. All o f these items w i l l be included in the Project Implementation Plan.
The detailed project implementation arrangements are described in Annex 6. For procurement arrangements, a Procurement Officer with IDA-finance experience wil l be appointed as a condition of Effectiveness. The Procurement Officer w i l l be assisted b y at least two procurement assistants for the day-to-day procurement responsibilities. In addition, the Procurement Officer w i l l be providing advice on contractual matters for school construction to the construction team, which consists o f one facilities construction advisor, one community construction advisor, one construction procurement officer, three facilities construction consultants, five full-time regional site engineers and possibly local engineer consultants, for the supervising o f school construction sites. The construction team wi l l be responsible for construction contract supervision and administration and w i l l be based at the Department of Materials and State Property Department.
The experiences of the Education Quality Improvement Project and the Flood Emergency Rehabilitation Project have been used to model the procurement, disbursement and financial management systems of CESSP. Extensive c iv i l works have been carried out under FERP with satisfactory quality at various levels-national, provincial, district and community/school levels-using national competitive bidding, quotations and community contracting procedures. Other procurement procedures, such as shopping, purchase through UN agencies, hiring of consultants and school grants administration were successfully carried out without any major difficulties under EQIP. Handling IDA-financed procurement activities for relatively small contract values, such as education activities, have not been a challenge for MoEYS. In addition to IDA-financed experiences, MoEYS has handled several development projects-building schools, providing scholarships to disadvantaged children and offering training-financed by other donors, e.g., ADB, EC, JICA, SIDA, UNICEF/SIDA, USAID, etc.
Most procurement activities-including the hiring of consultants and competitive bidding-will be carried out at the national level. Local training for POEDOE officers, school staff and community representatives; the administration of the scholarship scheme and day-to-day supervision o f school construction sites w i l l be handled at the provincial and district levels. Community contracting for small works, i f appropriate, w i l l be managed at the local school level wi th the help o f provincial engineers and facilities construction advisor and local consultants. Preparation of all bidding documents as well as the evaluation o f competitive bidding for c iv i l works contracts w i l l incorporate the input o f province level engineers and representatives from district or school levels.
There are moderate r i s k s associated with implementation by l ine Ministry departments. Procurement evaluations may be delayed due to internal governmental approval processes involving other ministries and inadequate contract management at various levels i s a possibility. There are also country related fiduciary r i sks associated with this project, which need to be dealt with as identified by the recently revised CPAR as stated below. Therefore, the overall project risk for procurement i s s t i l l high.
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Country Procurement Assessment Review (CPAR) and Legal Framework A preliminary CPAR was conducted in 1997 but was not finalized. A revised CPAR was conducted in 2002 and 2003 with the Royal Government and the Asian Development Bank as well as wi th substantial involvement from public and private agencies. The final CPAR, including an action plan, was completed in April 2004.
The revised CPAR identified that corruption s t i l l pervades public sector activities and creates a significant disincentive to foreign investment in the country. In addition, there i s no basic law on public procurement in Cambodia, except for a sub-decree issued by the Council of Ministers in 1995, which i s one tier below basic law. The sub-decree was supplemented by Implementing Rules and Regulations on Public Procurement (IRRPP), which was amended in 1998. Other guidelines exist for social funds, dealing with small scale of procurement, and for privatized concessions andor build-operate-transfer (BOT) projects, which the public dislikes because these projects have been usually singled sourced through direct concessions. The business community's view of public procurement i s that doing business in Cambodia i s costly, both officially and unofficially. The system lacks transparency and channels for complaints.
The revised CPAR acknowledged that fiduciary r i sks have lessened somewhat since the introduction o f competitive bidding b y donor-financed projects. Nevertheless, the risk i s s t i l l rated high because the existence of corruption i s mostly an outcome o f rent seeking due to low public sector remuneration; the absence o f procurement law and weaknesses in the regulatory framework; the Ministry o f Economy o f Finance over-controlling day-to-day procurement processes, which prevents the development o f procurement expertise in line implementation agencies; and a closed environment in awarding BOT/concession contracts.
A proposed action plan to mitigate fiduciary r isks has been developed. In addition, legal provisions w i l l be included in the Project Development Credit and Grant Agreements to govern procurement procedures for national competitive bidding for works and goods contracts, as f 0'110 w s :
Participation in bidding and preferences (i) only i f they can establish that they are legally and financially autonomous, operate under commercial law, and are not a dependent agency o f the Borrower or the procuring entity. Mi l i tary or security units or enterprises which belong to the Ministry o f Defense or the Ministry of Public Security shall not be permitted to bid.
Government-owned enterprises in Cambodia shall be eligible to participate in bidding
(ii) Prospective bidders shall be permitted to request bidding documents either in person or through the mail upon submission of a written application. Bidding documents shall be sold to anyone who i s wil l ing to pay the required fee of the bidding documents, and no other conditions shall be imposed on the sale o f the bidding documents. The fee for the bidding documents should be reasonable and consist only of the cost o f printing (or photocopying) the documents and their delivery to the purchaser. The bidding documents shall be delivered, at the prospective bidders' preference, either b y hand or b y maikour ier provided that the bidder i s wil l ing to pay the mail/courier delivery charges which should be specified in the Invitation for Bids. Each bidder shall be allowed to purchase only one set o f the bidding documents,
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(iii) allowed to participate without being required to associate or form joint ventures with local suppliers or contractors.
Foreign suppliers and contractors from eligible countries, shall, i f they are interested, be
(iv) local bidders, and local bidders shall be given no preference (either in the bidding process or in bid evaluation) over foreign bidders, nor shall bidders located in the same province or city as the procuring entity be given any such preference over bidders located outside that city or province.
Foreign bidders shall be eligible to participate in bidding under the same conditions as
(v) Prior registration shall not be a requirement to participate in bidding procedures.
(vi) complex works and with the prior approval of the Association.
Pre-qualification o f contractors shall not be required; except in the case of large or
Advertising; time for bid preparation (vii) A minimum of 30 days for the preparation and submission of bids shall be provided, and potential bidders shall be allowed to purchase bidding documents up to 24 hours prior to the deadline for the submission of bids.
Invitations to bid shall be advertised in at least one widely circulated national newspaper.
Standard Bidding Documents (viii) Standard bidding documents, acceptable to IDA, shall be used. The bidding documents shall provide clear instructions on how bids should be submitted, how prices should be offered, and the place and time for submission and opening of bids. Bidders shall be allowed to submit bids by hand or by mail.
Qual fication criteria and evaluation criteria (ix) Qualification criteria shall be clearly specified in the bidding documents, and all criteria so specified, and only criteria so specified, shall be used to determine whether a bidder i s qualified. The evaluation of the bidder's qualifications should be conducted separately from the technical and commercial evaluation o f the bid. When post qualification i s applied, the assessment of bidders' qualifications shall be carried out only after the preliminary and detailed evaluation o f bids has been completed b y the Purchaser/Employer and, in doing so, the qualifications of the bidder who has submitted the lowest evaluated substantially responsive bid shall be assessed first. In carrying out the post-qualification assessment, the EmployerPurchaser shall exercise reasonable judgment in requesting, in writing, from a bidder only missing factual or historical supporting information related to the bidder's qualifications and shall provide a reasonable time period (that i s , a minimum of 7 days) to the bidder to provide his response.
(x) criteria other than price shall be quantified in monetary terms. All evaluation criteria so specified, and only evaluation criteria so specified, shall be taken into account in bid evaluation. Mer i t points shall not be used in bid evaluation.
Evaluation criteria shall be clearly specified in the bidding documents, and evaluation
Bid opening, evaluation and award of contract (xi) Bids shall be opened in public, immediately after the stipulated deadline for submission o f bids. Bidders' representatives and the project's beneficiaries f rom the concerned local community who
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choose to attend, shall be allowed to be present. The name o f the bidder and total amount of each bid, including discounts, shall be read aloud and recorded. Bids received after the deadline for bid submission shall be returned to the bidders unopened. Immediately after completion of the bid opening proceedings, a copy of the bid opening record shall be posted at a prominent location, accessible to the public, outside the office of the concerned procuring entity and shall be retained at the same location until the award o f contract has been notified. A copy o f the bid opening record shall be promptly provided to all bidders who submitted bids.
(xii) All bids shall not be rejected or new bids solicited without IDA’S prior concurrence.
(xiii) No bidder shall be rejected merely on the basis of a comparison with the owner’s estimate and budget ceiling without IDA’S prior concurrence.
(xiv) specifications o f the bidding documents shall be rejected as not substantially responsive. A bidder shall not be permitted to withdraw material deviations or reservations once bids have been opened. Bidders shall not be eliminated from detailed evaluation on the basis of non-material, minor deviations or reservations.
A bid containing material deviations from, or reservations to, the terms, conditions or
(xv) documents, and contracts shall be awarded to the qualified bidder offering the lowest evaluated and responsive bid.
Evaluation o f bids shall be made in strict adherence to the criteria specified in the bidding
(xvi) allow for price adjustment formulae.
In the case o f contracts wi th a duration in excess of 18 months, bidding documents shall
(xvii) Bidders who disagree with arithmetic corrections made by the evaluating committee during the evaluation stage shall not be allowed to withdraw their bids without forfeiting their bid security.
(xviii) A bidder shall not be required, as a condition for award, to undertake obligations not specified in the bidding documents or otherwise to modify the bid as originally submitted.
(xix) There shall be no post-bidding negotiations wi th the lowest or any other bidder.
(xx) The Borrower shall declare a firm ineligible, either indefinitely or for a stated period, to be awarded a contract financed b y the Bank and the Government, if i t at any time determines that the firm has, directly or through an agent, engaged in corrupt, fraudulent, collusive, or coercive practices in competing for , or in executing, a Bank-financed contract.
Suppliers and Contractors (xxi) by the Association shall include a provision requiring suppliers and contractors to permit the Association to inspect their accounts and records relating to the bid submission and the performance o f the supplier and/or contractor, as the case may be, and to have them audited b y auditors appointed b y the Association, if so required b y the Association.
Bidding documents and contracts under national competitive bidding procedures financed
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Publication of the Award of Contract (xxii) The Borrower shall publish the following information on contract award on a free and open access website when i t becomes operational or on another means of publication acceptable to the IDA: (a) name of each bidder who submitted a bid; (b) bid prices as read out at bid opening; (c) name and evaluated price of each bid that was evaluated; (d) name of bidders whose bids were rejected and the reasons for their rejection; and (e) name o f the winning bidder, price it offered as well as the duration and summary scope o f the contract awarded. This publication shall be updated quarterly.
Complaints by Bidders and Handling of Complaints (xxiii) The Borrower shall establish an effective protest mechanism, related to the procurement process and contract award, acceptable to IDA, allowing bidders to protest and the timely handling o f such protests. The procedures to receive and handle complaints shall be disclosed in the bidding documents.
Procurement Capacity Action Plan A basic procurement training highlighting revised policies o f the new Guidelines dated May 2004 for both goods and works and consultant services was conducted during the project Pre- Appraisal mission. Specific procurement training for the Cambodia Education Sector Support Project, including I C B procedures, w i l l be conducted by the World Bank procurement team during Project Negotiations and Project Launch missions. The Government’s preparation team funded b y the PHRD grant has prepared a Project Implementation Plan (PIP), including each procurement method’s steps and the provision o f various model bidding documents. The final PIP was submitted for review by the Association at the end of Negotiations.
Procurement Plan MoEYS developed a draft procurement plan, including advance procurement activities eligible for retroactive financing, covering the f i rs t 18 months o f project implementation. This plan has been agreed in principle between MoEYS and the Project Team on December 1,2004. The final plan w i l l be agreed during Project Negotiations and then it w i l l be available at the project coordination office, CESSP, 169 Norodom Blvd., Phnom Penh, Cambodia. I t w i l l also be available in the project’s database and in the Bank’s external website. The Procurement Plan w i l l be updated in agreement with the project team annually or as required to reflect the actual project implementation needs and improvements in institutional capacity.
Frequency of Procurement Supervision In addition to the prior review supervision to be carried out from Bank offices, the capacity assessment o f the implementing agency has recommended biannual supervision missions to visit the field to carry out post review o f procurement actions.
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Details of the Procurement Arrangement involving international competition.
1
Ref. No.
1
2
3
1. Goods Contracts.
2 3 4 5 6 7 8 9
Contract Estimated Procurement P- Domestic Review Expected Comments (Description) cost Method Q Preference by Bank Bid-
Post) Date ( y eslno) (Prior I Opening
Educational/ $120,000 ICB No Yes Prior October instructional 20,2005 materials Educational/ $120,000 ICB No Yes Prior October instructional 20,2007 materials Educational/ $120,000 ICB No Yes Prior October instructional 20,2009 materials
(a) L i s t o f contract Packages which w i l l be procured following ICB:
1
Ref. No.
1
2 3 4 5 6 7
Description of Estimated Selection Review Expected Comments Assignment Method by Bank Proposals
(Prior I Submission Post) Date
cost
Audit services $25,000 LCS Post 3 months after Annual contract and could be Effectiveness extended based on
satisfactory performance.
(b) ICB Contracts estimated to cost above US$lOO,OOO per contract w i l l be subject to prior review b y the Bank. N o direct contracting i s expected.
2. Consulting Services.
(a) L i s t of Consulting Assignments with short-list of international f i r m s .
(b) Consultancy services estimated to cost above US$lOO,OOO per contract, if any, and Single Source selection o f consultants for f i r m s for any assignments regardless of value, w i l l be subject to prior review b y the Bank.
(c) Short l is ts composed entirely of national consulting firms: None i s expected.
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Annex 9: Economic and Financial Analysis CAMBODIA: Education Sector Support Project
Economic Analysis Current patterns of economic growth and poverty reduction. After nearly three decades of armed conflict and political instability, Cambodia has made progress in stabilizing i t s economy, re-introducing a greater market orientation and restoring economic growth. Despite such progress, many challenges remain to ensure sustained economic growth and poverty reduction. Economic growth has been generally robust in recent times but too narrowly based on two sectors (garments and tourism), whose future prospects remain uncertain. The bulk of the economy continues to rely on subsistence agriculture. The benefits from this growth pattern have been concentrated geographically and socially, resulting in widening inequalities between urban centers and the countryside and between rich and poor. This explains in part why quite robust growth has resulted in only modest (and, in all likelihood, fragile) reductions in the poverty headcount.
Rationale for investing in education. Central to RGC's strategy to promote new and sustainable sources of economic growth and improve living standards are the diversification and deepening of the country's low human resource base. Research suggests that while the continuing low supply o f skil led and educated workers in the labor market does not pose a serious constraint in light of Cambodia's current economy, i t w i l l for the development o f a new model of economic growth. In particular, i f the economy i s to move gradually towards the production of goods with higher s k i l l content-through the development of modern and diversified agricultural and non- farm rural sectors, as well as the establishment of industrial zones near the border areas- immediate actions are needed to increase the stock and improve the quality of education. Thus, there are substantial dynamic macro benefits to expanding and improving education in terms of sustained economic growth and poverty reduction through the development of new sources o f growth.' In addition, education carries large private returns in terms o f current labor market outcomes (wagedearnings and employment-related outcomes) and thus in terms of current livings standards and vulnerability.
Table 1 reports the estimated probabilities of being in paid employment, working in the wage sector and having a permanent job, b y school level completed." The returns to schooling in terms o f paid employment are sizable and increase with school level but at a decreasing rate. There are no returns to primary school education in terms o f working in the wage sector (versus the lower premium and more temporary, self-employment sector), although the returns to higher levels o f schooling are sizable and they increase at an increasing rate, particularly beyond the lower secondary level. More educated workers are also more l ikely to have permanent jobs than
Alternatively, we can also view these benefits as the cost o f not doing anything and maintaining the status quo in education. lo All returns to schooling estimates as based on the 2001 Labor Force Survey (LFS) and are derived from models that also include controls for experience, gender, geographical area and economic sector (in the case o f the models for earnings). The returns in terms o f labor force participation or employment are not considered since labor force participation rates in Cambodia are quite high and most individuals in the labor force are employed.
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are less educated workers, although there are no significant differences beyond the basic education Ievel.
Table 1. Distribution of employment-related outcome pleted (percent) None Primary L.Sec U.Sec Tertiary
Paid employment (vs. unpaid) 56.2 66.6 72.9 85.4 95.8 Wage employment (vs. self-employment) 27.0 25.9 32.3 55.5 90.8 Permanent employment (vs. temporary)
Self-employment 33.4 38.9 47.1 54.2 wage sector 64.2 84.7 93.4 98.7 99.3
- - - - Table 2 reports the estimated distribution of monthly wages and earnings b y school level completed.'' Wage returns to schooling increase with school level, but this i s more accentuated at the lower and upper ends of the wage distribution. The same overall picture emerges in the case o f earnings, although here the proportional differences across school levels are higher along a broader portion o f the earnings distribution.
A. Wage distribution (employees) None Primary L. Sec U. Sec TVET University
c 49,999R 16.07 11.31 8.96 6.56 6.21 3.19 50,000R-99,999R 32.19 28.39 25.76 22.32 21.72 15.23 100,000R- 149,999R 18.37 18.56 18.29 17.55 17.38 14.87 150,000R-199,999R 17.64 19.87 20.87 21.66 21.75 21.57 200,000R-299,999R 9.86 12.66 14.35 16.32 16.64 19.44 300,000R-499,999R 4.53 6.74 8.33 10.53 10.92 15.43 > 500,000R 1.35 2.45 3.43 5.05 5.38 10.25
- a - -
- tion (self-employedworkers)
No school Primary L. Sec U. Sec c 49,999R 24.43 19.93 14.51 6.80 50,000R-99,999R 32.37 30.73 27.47 18.95 100,000R-149,999R 15.07 15.76 16.10 14.44 150,000R-199,999R 13.69 15.33 17.27 18.94 200,000R-299,999R 6.77 8.11 10.04 13.38 300,000R-499,999R 5.96 7.68 10.58 17.67 > 500,000R 1.70 2.47 4.04 9.82 - -
Notes: TVET refers to technical and vocational education and training.
B y generating significant differences in the quality of employment and labor incomes, education i s a key determinant o f current poverty, inequality and vulnerability. Investment in education, i f appropriately targeted, can break the intergenerational transmission of poverty and reduce inequality. In particular, a recent report on the basic education sector in Cambodia shows that there are remarkable differences in access to, and progress through school by level o f household wealth. These differences remain even after controlling for other factors and overshadow the differences b y gender and region. Children from the poorest households are 17 percent less
'' The information on wagedearnings in the LFS i s only provided in income brackets and not continuously. To control for differences in wages and earnings stemming from varying hours o f work, we include weekly hours of work as an offset (Le., as an independent variable with i t s coefficient equal to one).
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l ikely to ever enter school than children from the richest households. Furthermore, whereas almost all (89 percent of) children from the richest quintile of households complete primary school, only 59 percent of the children from the poorest quintile do so. This difference widens in lower secondary education, with 72 percent o f the richest children completing this level but only 32 percent o f the poorest children doing so. There i s also a geographical dimension of poverty in relation to schooling-differences in poverty levels across commune are significant in explaining age-specific enrollment rates even after controlling for household-level wealth.
Basic education as a priority investment sector. The above analysis demonstrates that general investments in education carry important benefits in terms of economic growth and poverty reduction. The next step i s to justify the investment in basic education, as well as the specific types o f interventions proposed under CESSP.
A study on labor and s k i l l s in Cambodia shows that the estimated returns to schooling are due in part to productivity differences across workers wi th different levels of schooling. However, these returns mainly reflect the scarcity of educated workers, even at very low levels. Cambodia has the largest share of the adult population in the region (70 percent) who have never been to school at all, and the second highest illiteracy rate (63 percent) after Laos. This explains why there are such large returns even to primary school completion. As discussed above, an economic model based on new sources of growth requires an expansion and deepening o f the human resource base. T o this end, any efforts to improve the education base o f the country must start from the bottom, that i s , by providing quality basic education for all. Both the NPRS as well as MoEYS’s objectives and policy framework reflect the emphasis placed b y RGC on quality basic education for all.
Despite recent increases in primary school enrollments, there has not been much improvement in terms o f completion rates. Cambodia s t i l l has some way to go to achieve universal primary education. In particular, even though most children spend some time in primary school, significant numbers drop out before completing the cycle-only about 75 percent o f those who enter school end up completing the primary cycle, and 52 percent, the lower secondary cycle. As noted earlier, this decline in participation through the years o f basic education i s particularly severe among children from households in the poorest two wealth quintiles. There are also differences b y gender and geographic area. Gender differences peak in the last grade o f primary school (there i s a 10 percentage point difference between boys and girls in the probability o f completing primary school) and in the transition to lower secondary school. Thus, achieving universal basic education requires addressing the bottleneck starting at the upper primary level and focusing on interventions that promote equitable access and participation.
Project interventions in key priority areas of basic education. The next step in the analysis o f the economic rationale for the project i s to examine the extent to which the proposed interventions are consistent wi th available evidence on the factors and policies that facilitate access to, completion of and learning in basic education, especially among the most disadvantaged children.
All the results presented here are based on multivariate models. 12
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Expanding primary school facilities. In order to improve access to and progress in school, “completing” all primary schools in a cost-effective way w i l l be needed. In particular, the lack o f a complete primary cycle in 40.5 percent of schools in the country has a negative impact on education outcomes over and above the loss associated with the grades that are not offered. The completion o f typical incomplete primary school (3 grades) would decrease the drop-out rate in that school b y 3.9 points (2 directly and 1.9 indirectly through the decline in overage intake) and the repetition rate b y 6.8 points. The access o f complete primary schools i s also found to be a key determinant o f school entry, school entry age as well as the enrollment rate of 15-17 aged boys.
Expanding educational facilities at the lower secondary level. The expansion of lower secondary school (LSS) facilities in Cambodia could have benefits over and above those on the education outcomes o f lower secondary education itself. The presence o f a nearby L S S (only 34 percent o f communes now have their own LSSs) reduces the drop-out rate in primary education b y 7.6 percentage points (6.6 directly, and 1.0 indirectly through the decline in overage intake). The access to a L S S facility in the commune i s also found to be a key determinant of the school entry o f girls and the enrollment rate of girls between the ages of 15 and 17. In addition, recent increases in primary school enrollments have resulted in greater numbers o f primary school graduates, posing growing pressure on the supply of L S S places.
Reducing access barriers for disadvantaged children-conditional school subsidies for the poor. Private direct costs o f basic education have decreased in recent times owing to the abolition of school fees in primary education. Private costs, however, are non-negligible, and they increase rapidly as one moves up in basic education f rom lower to higher grade level. Costs are substantially higher in urban areas than in rural and remote areas. In rural areas (where about 80 percent o f Cambodia’s population lives), annual private costs go from R 56,000 ($14) in grade 1 to R 130,500 ($33) in grade 6 and R 239,200 ($60) in grade 7. The strong relationship between household wealth and schooling (as measured b y access to and progress through schooling) suggests that direct costs do play a role, particularly with respect to the successful completion of the last grade o f primary school and gaining access to LSS. Qualitative evidence also highlights the greater role o f direct costs in the demand for lower secondary education.
Direct outlays are only a small fraction of schooling costs when compared to the indirect expense from the value o f child work. Chi ld work i s widespread in Cambodia, starting at a very early age. The time devoted to child work and the contribution to household l iv ing standards are far from inconsequential. On average, children earn about $1 per day, which accounts for about 28 percent o f total household labor income. Child work can interfere wi th schooling by reducing the time available for school attendance and b y reducing learning outcomes as a result of physical exhaustion. To this extent, school and work activities are substitutes, particularly school and productive work. The trade-off, or degree o f substitution, between school participation and productive work increases rapidly as the child gets older, particularly in the case o f girls, whose schooling at ages 15-17 i s more l ikely to be displaced b y productive work than i s the case for boys of the same age. For both boys and girls, a strong negative relationship between school and work i s already apparent at a very early age. In particular, beyond the association between work and school drop-out, work tends to cause a delay in school entry or to prevent i t altogether, particularly in the case of boys.
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The results presented here suggest that school incentive schemes that provide cash subsidies to poor children, conditional upon school attendance, offer a promising route. In particular, these incentives increase schooling directly b y providing poor families with additional resources (i.e., an income effect), as well as indirectly, b y compensating parents for the foregone economic product from their children’s labor (a substitution effect).
In addition, preliminary results from the ongoing evaluation of the JFPR scholarship program, which targets poor girls and ethnic minority children in selected LSSs,13 suggest that the program has had a positive “initial enrollment effect’’ among those coming from grade 6. In particular, the scholarships have attracted children that would not have gone to L S S in the absence of scholarships. A more comprehensive evaluation i s underway, which w i l l further inform the design of the school subsidy component of CESSP prior to the program’s implementation.
Improving education quality by enhancing teacher education and professional development. Diversity of educational background and pre-service teacher training continues to characterize the teacher labor force in Cambodia. This i s a reflection of the different training formulas under which primary and lower secondary teachers have been recruited over the years.14 However, the distribution of teachers according to their init ial education by geographic location i s quite uneven-more educated teachers tend to teach in wealthier areas. Also, there i s limited opportunity for professional development-in-service teacher training efforts have been sporadic, unstructured, and concentrated at the primary level. Beyond the quantity dimensions o f schooling and training on the part of existing teachers, most teacher education programs have limited relevance to classroom practice, and many teacher trainers are inadequately prepared themselves.
A teacher’s general education i s found to be strongly associated with the drop-out rates o f the students the teacher teaches-a 10 percent increase in the proportion o f teachers in a school who have completed L S S education decreases the primary school drop-out rate b y 0.6 percentage points. In addition, more educated teachers attract larger numbers o f children to school, and attract them at a younger age.
As regards in-service teacher training, a recent impact evaluation study of the EQIP project shows that, among all the different quality improvement interventions offered under that project, money invested in teacher development had the highest payoff in terms of student retention, student promotion and, particularly, student learning (as measured b y numeracy and literacy test scores). A one dollar (per pupil) increase in teacher training translated into 0.70 and 1.05 percentage points on grade 4 achievement tests in arithmetic and Khmer language. A one standard deviation increase in teacher training activities (about 50 cents per pupil) led to about a 0.15 percent o f one standard deviation increase in student literacy-a fairly large impact. Cost- effectiveness calculations indicate that small amounts o f money devoted to teacher training can
l3 Each selected school i s awarded 45 scholarships o f $45 each to children who have completed primary school and want to enroll in grade 7, and 30 more scholarships o f $45 each to students at risk o f dropping out o f grade 8. l4 Primary teachers in the system today include those with 3+1 (three years of primary schooling plus one year o f teacher training), 4+1,4+3,5+3, 8+1, 8+2 and, according to the current formula, 12+2. Lower secondary teachers include those with 7+3, 8+3, 11+2 and 12+2.
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have a large impact on student outcomes-it seems to cost about $1 per pupil in teacher training to increase test scores by 1 percent.
Financial analysis As part o f the Bank’s due diligence in the appraisal of CESSP, the team looked at the recurrent costs generated as a result of this program, part of the Government’s broader Education Strategic Plan (ESP) for basic education.
Teachers’ salaries. To begin with, the construction of classrooms to accommodate the expansion o f enrollments implies the recruitment of additional teachers, whose salaries w i l l need to be covered. .The ESP states that the number o f L S S teachers w i l l increase from below 19,000 in 2003 to above 22,000 in 2008, with the largest annual increment (over 2,000) occurring in the first year (2004) and with a smaller increment in every subsequent year. Assuming an average L S S teacher’s salary of $32 per month, this implies an additional salary bill o f $836,000 (in 2002 dollars) in 2004, and smaller increments in all subsequent years, falling to just $123,000 in 2008.15
Scholarship scheme. The scholarship scheme, or demand-side incentive scheme (which CESSP w i l l finance only in part, with other support expected from, among others, PAP12, ADB/JFPR and BTC), imposes an additional burden on the recurrent budget for education. The Education Sector Strategy Program Review for 2003 estimates the following amounts for the scholarship scheme: 3, 5,7 and 12 bi l l ion Riels (or approximately 0.8, 1.3, 1.8 and 3.1 mi l l ion USD) in 2003,2004,2005 and 2006, respectively (ESSP Review 2003, p. 11 1).16 The ESSP Review does not project the costs of the scholarship scheme beyond 2006, but for purposes of this financial analysis, the appraisal team has assumed that the total amount for scholarships w i l l not increase any further, but w i l l level o f f at 12 bil l ion Riels (3.1 mill ion USD) in 2007 and beyond.
Recent trends in educational expenditures. As a share o f GDP, Government spending in education more than doubled, f rom less than 1 percent in 1997 to about 2 percent in 2002, while education’s share of total Government expenditures rose from 7 percent to 12 percent over the same period. This greater public commitment to education resulted in an increase in the Government’s share of total educational expenditures (from 21 percent in 1997 to 50 percent in 2002), thereby relieving somewhat the burden on households. Still, the parental share o f total expenditures remains high, having fallen only from 37 percent in 1997 to 34 percent in 2002. This means that the private costs o f education remain a serious access barrier for many families, especially those l iv ing in poverty and in remote rural areas. The biggest proportional change in the responsibilities for the financing o f education in Cambodia has been the reduction in external (donor and NGO) financing. The external share fell from 41 percent in 1997 to 16 percent in 2002.
Furthermore, there has been a shift in government spending on education in favor o f recurrent versus capital expenditures. Recurrent spending rose from 58 percent o f the total in 1997 to 84
l5 Of the 3,000 teachers added between 2003 and 2008, the Bank-financed support program w i l l account for about half o f the total, since about 1,500 new classrooms are expected to be constructed. l6 I t i s proposed that the Bank-financed program w i l l finance about $4.7 mi l l ion in scholarships over the f ive years, 2005-2009.
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percent in 2002. Over this same period, basic education has been receiving between 80 and 84 percent o f the total o f RGC’s recurrent expenditure on education.
Projections in the budget for education. According to the Medium-Term Macroeconomic Framework fo r 2003-09 (prepared b y the IMF in collaboration wi th the MEF), total government expenditure as a share o f GDP, and recurrent government expenditure as a share of the total are expected to be maintained at least at 2004 levels (between 17.5-18.0 percent, and 62-63 percent respectively). l7 According to MEF budget projections, education’s share of the recurrent budget wi l l fa l l in 2005 to 18.5 percent, f rom i t s recent-peak level o f 19.5 percent in 2004, but Government’s current commitment to education as a priori ty sector suggests that education’s share can be maintained at the 18.5-percent level (or higher) in the years ahead. Moreover, ESP projections show that the percentage o f recurrent education spending allocated to basic education w i l l increase, f r o m 62 percent currently, gradually to 76 percent (while, in the interest o f equity and promoting access for the poor, the share of total spending on basic education bv families i s projected to fa l l f r om 17 percent to 12 percent).
Sustainability analysis. An analysis o f the total incremental costs associated wi th (a) the recruitment o f additional L S S teachers and (b) the annual increases in the size o f the scholarship scheme, as compared wi th (c) projected annual increases in the recurrent budget available for all levels and all types o f education was then conducted. Table 3 summarizes this analysis.
l7 Estimates only, since the 2004 budget out-turns were not yet available when this analysis was conducted.
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Variable 2004 2005 2006 2007 2008 1. Additional Teachers Salaries
A.LSS pupils 567,820 675,865 783,910 891,955 1,000,000 B.LSS classrooms 8,758 9,989 11,039 11,886 12,500 C.LSS teachers 20,940 21,483 21,935 22,315 22,636
2. Additional Costs of Scholarships A. Scholarships for poor (rmllions of Riels) R 5,000.0 R 7,000.0 R 12,000.0 R 12,000.0 R 12,000.
4. Additional Education Recurrent Budget Available A.GDP (billions of Riels, 2002 prices) R 17,190.4 R 17,517.0 R 18,270.2 R 19,275.1 R20,412.3 B.Total govemment expenditure (% of A) 17.5% 18.0% 18.0% 18.0% 18.0% C. Total government expenditure (billions of Riels) R 3,008.3 R 3,153.1 R 3,288.6 R 3,469.5 R 3,674.2 D.Tota1 recurrent expenditure (% of C) 62.0% 62.0% 62.0% 62.0% 62.0% E. Total recurrent expenditure (billions of Riels) R 1,865.2 R 1,954.9 R 2,039.0 R 2,151.1 R 2,278.0 F. Education recurrent expenditure (% of E) 19.5% 18.5% 18.5% 18.5% 18.5% G. Education recurrent expenditure (billions of Riels) R 363.7 R 361.7 R 377.2 R 398.0 R 421.4
3. Additional Demands on Education Recurrent Budget (1E+2C) ATotal of add1 salaries and scholarships (millions of USD) $ 1.357 $ 0.729 $ 1.476 $ 0.146 $ 0.123
and Institutional Reform: Integrated Fiduciary Assessment and Public Expenditure Review,” 2003; MoEYS, “Education Sector Performance Review 2003,” May 2003; MoEYS, “Education Strategic Plan 2004-2008,” September 2004; IMF, “2004 Article IV Consultation Discussions with Cambodia” (SM/04/286), 2004.
Financial sustainability and systemic growth i s possible by recruiting additional teachers for single shifts only. This i s crucial as not all teaching staff are able or wil l ing to work double- shifts. The annual increments to the L S S teachers’ salary bill and to the student scholarship scheme seem affordable given projected increases in the total recurrent budget for education - between $4 mi l l ion and $6 mi l l ion in all years except for 2005, when the recurrent budget for education i s expected to be about the same as in 2004. In 2005, there would be a projected shortfall of $1.263 million, which CESSP’s financing o f student scholarships could cover. In subsequent years, the Government’s own budget should cover the incremental expenditures on teachers’ salaries and scholarships, even without the continuing external support f rom the Wor ld Bank and the ADB (see figure 1). B y the close o f the CESSP operation (given the assumptions made here on the growth o f the recurrent budget for education, which are based on the macroeconomics projections o f MEF, the IMF and the World Bank), there should be adequate budget to sustain indefinitely the recurrent expenditures generated b y the ESP program for lower secondary education.
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The risk i s that the growth o f the budget for education w i l l be much less than expected (either because the projections for GDP and overall government budget growth are not met, or because education's share of the government budget begins to decline, following the recent period in which i t has grown significantly) or that other, reasonable demands within the education sector wi l l be given higher priority. Should reforms in the civ i l service result in an increase in the salaries for teachers, i t i s l ikely that this new commitment w i l l be honored. On the other hand, government funding for the scholarship scheme could be vulnerable, in the event that the government budget for education becomes tighter in the future, and once external support for this scheme (from the World Bank, ADB, Belgian Technical Cooperation and others) ceases to be provided.
I Figure 1. Comparison of projected increases in recurrent budget for education and additional recurrent costs associated with Education Sector Strategy (ESP) for basic education, to estimate surplus (or gap), 2005-2008
I '.O I 1 6.0
5.0
4.0
2 3.0
3 2.0
2 =I
2 2 3 1.0
0.0
-1.0
-2.0
2007 2008
-1 - + - Increase in education recurrent budget (A)
+-Total of additional salaries and scholarships (B) I C . Financing surplus/gap (A-B)
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Another possible scenario, also financially sustainable, aimed at increasing efficiency of the educational system envisages a constant PTR of 40: 1. Again, i t i s assumed that the teaching staff works on a single shift basis. The implications in terms o f increases in recurrent expenditure are similar and affordable l ike the scenario above. As can be seen from the table below, this scenario could accommodate a sharp increase in student enrollments, particularly, from 2004 to 2005.
4. Additional Education Recurrent Budget Available A.GDP (billions of Riels, 2002 prices) R 17,190.4 R 17,517.0 R 18,270.2 R 19,275.1 R20,412.3 B.Total government expenditure (% of A) 17.5% 18.0% 18.0% 18.0% 18.0% C. Total government expenditure (billions o f Riels) R 3,008.3 R 3,153.1 R 3,288.6 R 3,469.5 R 3,674.2 D.Total recurrent expenditure (% of C) 62.0% 62.0% 62.0% 62.0% 62.0% E. Total recurrent expenditure (billions of Riels) R 1,865.2 R 1,954.9 R 2,039.0 R 2,151.1 R 2,278.0 F. Education recurrent expenditure (% of E) 19.5% 18.5% 18.5% 18.5% 18.5% G. Education recurrent expen. (billions of Riels) R 363.7 R 361.7 R 377.2 R 398.0 R 421.4
Table 4. Comparison of incremental recurrent costs generated b y ESP for basic education and increases in the recurrent budget for education, 2004-2009 Variable 2004 2005 2006 2007 200t
1. Additional Teachers Salaries A.LSS pupils 567,820 826,680 852,040 872,320 888,880 B.LSS classrooms 8,758 9,989 11,039 11,886 12,500 C.LSS teachers 19,851 20,667 21,301 21,808 22,222
H.Increase in education recurrent expenditure (b. of Riels) R (2.0) R 15.6 R 20.7 R 23.5 1. Inc. in educ. recurr. expen. (m. of USD. R 3,84O=USD 1) $ (0.534) $ 4.050 $ 5.403 $ 6.114
2. Additional Costs of Scholarships A.Scholarships for poor (millions of Riels) R 5,000.0 R 7,000.0 R 12,000.0 R 12,000.0 R 12,000.
The chart below demonstrates the financial viability o f undertaking this plan o f action. Except for the year 2005 where there i s a projected shortfall o f $1.368, when CESSP would be in i t s startup phase. In later years, the Government would be able to, on i t s own, cover the incremental expenses.
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Figure 1. Comparison of projected increases in recurrent budget for education and additional recurrent costs associated with Education Sector Strategy (ESP) for basic education, to estimate surplus (or gap), 2005-2008
6.0
5.0
~1 4.0 - 2 B
$ 2.0
- v1 3.0 3 LI
.- - B 1.0
0.0
-1.0
Y c i 0
2007 2008 F:’/I = + - Increase in education recurrent budget (A) ’ 4- Total of additional salaries and scholarships (B)
+ C. Financing surpludgap (A-B)
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Annex 10: Safeguard Policy Issues CAMBODIA: Education Sector Support Project
There are no major safeguard issues associated with CESSP and no land acquisition or resettlement (OP4.12) concerns are expected, since most o f the civ i l works under Component 1.1 w i l l be conducted on existing school sites. In a minority o f sites (approximately 20-25 percent), classroom construction w i l l take place in new sites on vacant and idle land owned by the Government that i s free from all encumbrances, habitation, dispute, claim or controversy. The use o f the land w i l l neither require a resettlement plan nor a resettlement framework. The project i s rated as a Category C project.
Environmental Assessment (EA) (OP4.01) An Environmental Assessment was conducted b y an Environment Management Consultant during project preparation. School design w i l l include appropriate ventilation, lighting, sanitation facilities and ramps for disabled students. An independent evaluation of community- built schools was conducted by ADB in September 2002 and found satisfactory if communities received construction supervision training before the start o f school construction.
Recommendations for improvement of school wastewater treatment facilities, flood protection for drinking water wells, sanitation of latrines, training in use and maintenance of latrines and environmental screening of proposed civ i l works have been incorporated into MoEYS standard practices. Contractor specifications to address environmental issues, including construction dust and noise control, waste management, site management, provision o f clean water and sanitation facilities, unexploded ordinance removal, asbestos-containing material demolition management and preservation of cultural and historic resources have also been adequately addressed and integrated to bidding documents.
Social Assessment Project preparation was conducted with a high degree o f consultation and participation. A beneficiary assessment-including over 400 community members, teachers and primary and lower secondary students from urban, rural and remote areas in three provinces-informed the design and characteristics o f the interventions espoused. There are no major issues outstanding in terms o f indigenous peoples, gender or cultural property. CESSP w i l l be implemented in close coordination, i f approved, with a Japan Social Development Fund (JSDF) grant to mainstream inclusive education for disabled children in six pilot provinces.
Indigenous Peoples (OD 4.20) Some project activities w i l l be focused on poor areas where ethnic minorities reside. CESSP i s expected to enhance the livelihoods of indigenous peoples in the following ways. First, the proposed school facilities expansion plan w i l l play a positive influence in enabling ethnic minority children to complete primary and continue on to secondary schooling b y reducing the distance away from school. Second, scholarship support w i l l be provided to reduce the direct and opportunity costs to education. Targeted incentive schemes are an actionable measure in the 1997 General Policy for Highland Peoples Development (produced b y the Inter-Ministerial Committee for Highland Peoples Development). Third, the project w i l l adopt the Remote
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Schools Teacher Development Framework in order to foster professional capacity building and development of indigenous peoples as teachers (see Annex 12 for a more comprehensive discussion).
Gender Issues Gender parity i s a source of concern in Cambodia. The gender gap in enrollment widens at each successive education level and i t grows particularly acute at the upper secondary level. CESSP w i l l mainstream girl-friendly activities to ensure equal opportunity for participation in education. The school facilities expansion and scholarship program wi l l enable girls to attend school by reducing the distance from home and diminishing the direct and opportunity costs to education. Lack o f toilet facilities i s a factor often cited as a barrier to female participation. School construction w i l l include lavatories for boys and girls. In addition, teacher professional development activities w i l l serve as an avenue to challenge stereotypical attitudes towards gender. Teachers can raise awareness about the importance of equal access to education for boys and girls in their communities and promote attitudinal changes towards the role of girls and women in domestic l i f e as well as in society or the economy (see Annex 11 for a more comprehensive discussion).
Cultural Property (OPN 11.03) Due to the fact that the bulk of c iv i l works w i l l take place on existing school sites, i t i s unlikely that the project w i l l adversely affect locations that have archeological, paleontological, historical, religious or unique natural values. Nevertheless, specific social provisions covering cultural and historical resources w i l l be incorporated in the technical specifications o f the c iv i l works bidding documents and subject to the approval o f the Association.
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Annex 11: Mainstreaming Gender
CAMBODIA: Education Sector Support Project
Cambodia has one of the lowest net enrollment rates in East Asia. Access to education i s a significant gender issue and disparities grow larger throughout the education cycle, especially among the poor and in remote and rural areas.
Indicators VALUE
Primary girls enrollment, 2002 (% of population 6-1 1 years) Lower secondary girls’ enrollment, 2002 (% of population 12-17 years) Female to male literacy ratio (% of ages 15-24) Girls to boys gross enrollment ratio, primary, 1996-2000. Girls to boys gross enrollment ratio, secondary, 1996-2000. Girls to boys gross enrollment ratio, tertiary, 1996-2000. % age of female teaching staff
84 16
0.90 0.88 0.57 0.38
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B y 2010, Cambodia aims to achieve universal access to and completion o f primary and lower secondary education. Some important progress has been made towards the attainment o f these goals in recent years. In 2002/03,90 percent o f the boys and 84 percent of girls were enrolled in primary schools. The gender parity index (GPI) for primary enrollment stands at 0.88 and i s growing.
But the gender gap in education increases with each level o f schooling. Girls enrollment i s 8 percent below that of boys at the pre-primary to primary stages, 23 percent at the lower secondary school level and 36 percent at the upper secondary school level. Survival and completion rates are lower for girls than for boys. Overage enrollments due to delay in starting school, high repetition rates and interrupted schooling make this problem more acute, especially for girls. Drop-out rates increase for girls during adolescence, indicating financial pressures, opportunity costs and other factors such as household duties and early marriage. Over the past eight years, drop-out rates for primary school girls have remained constant at around 13-14 percent.
The costs (real and opportunity) of education are major factors that determine participation of girls in schooling. Although school fees are the same for both boys and girls, poor families perceive higher opportunity costs and lower benefits f rom educating their daughters. They prefer to educate boys as their economic productivity w i l l help them in their o ld age. Moreover, opportunity costs increase with age, widening the gender gap at higher levels o f schooling. On average, girls have higher rates of labor force participation and tend to work more hours than boys.
Distance to school remains a major constraint for access to schools. Poor quality o f roads, particularly in rural and remote areas, and lack o f transportation inhibit families from sending their children to school. Parents are concerned about the physical and moral safety o f their daughters during the long walk to school. This may result in a delay in entry to schools. In
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addition, while i t i s common for boys to l ive in religious institutions while attending lower and upper secondary school, no comparable housing system exists for girls. This i s a salient reason for high drop-out rates amongst girls’ at the lower secondary school level.
The current curriculum content and implementing guidelines are “gender blind.” Subjects do not make references to gender equality concepts. Stereotypical gender roles are reinforced, which can have a strong bearing on students’ understanding, perceptions and social attitudes and behaviors. There has been no gender input in the design o f recently introduced basic education textbooks.
The absence of female teachers and female role models, especially in rural areas, can also be a discouraging factor that prevents girls from attending schools. The lack o f female teachers means a lack o f female role models which leads to restrictions on female access to secondary school for security and other reasons, which in turn restricts the number o f female rural candidates for teacher-training centers (TTCs) which leads to fewer female candidates to teach in rural and remote areas. Only 38 percent o f teaching staff i s female and their proportion decreases with increases in educational level. L o w salaries and unsafe l iv ing conditions in rural and remote areas constrain female teachers to accept teaching posts in such localities.
Lack o f toilet facilities i s another factor that prevents female participation in schooling, especially at higher education levels. In Cambodia, 65 percent of all primary schools and 13 percent o f upper secondary schools have no toilets. Only a few schools have separate facilities for boys and girls. This situation creates problems of modesty, particularly for adolescent girls.
Fewer women in secondary education mean that tertiary education i s also dominated by male students. The few women who do complete secondary education and pass university entrance examinations in rural areas are not able to attend universities as most higher education institutions are located in Phnom Penh. The cost o f travel and dearth o f affordable and appropriate housing makes university education harder for rural women.
Mainstreaming gender CESSP w i l l benefit children at primary and lower secondary schools in targeted provinces, and in particular the most disadvantaged children (girls and ethnic minority groups) who face barriers to access quality education.
A benefit-incidence analysis of public spending on education in Cambodia shows that benefit incidence i s influenced b y gender. In cases o f subsidies b y the Government on schooling, i f more resources are directed towards primary schooling than at higher levels of education, girls gain a greater share o f education subsidy as gender differences are larger at higher levels o f education. Gender-disaggregated benefit-incidence analyses conducted to inform Cambodia’s 2003 Integrated Fiduciary Assessment and Public Expenditure Review (PAPER) demonstrate that improving rural transport, providing scholarships and building school toilets would increase girls’ enrollment levels in schools.
Some of the measures under CESSP to mainstream gender in education include:
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0 Provision of primary and lower-secondary classrooms in communes without them to shorten travel distances and promote community oversight. School sanitation facilities (latrines and wells) w i l l be improved and separate facilities w i l l be provided for girls. A clean and safe physical environment w i l l encourage female participation in schooling.
In order to reduce the direct costs o f schooling and make i t more affordable, MoEYS wi l l expand i t s existing scholarship program to increase enrollments and schooling opportunities, especially for girls. Demand-side incentives w i l l help reduce drop-out rates.
0 Teacher training activities w i l l create a better learning environment that benefits both male and female students. Teacher professional development activities may also serve as an avenue to challenge stereotypical attitudes towards gender. Teachers can raise awareness about the importance o f equal access to education for boys and girls in their communities and promote attitudinal changes towards the role of girls and women in domestic l i f e as well as in society or the economy.
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Annex 12: Ethnic Minorities and Education Goals CAMBODIA: Education Sector Support Project
Cambodia i s a multi-ethnic society. There are about 36 minority groups, accounting for nearly 4 percent o f the total population. An estimated 1 percent o f the total population i s highland, or hill tribe, peoples. Hill-tribe peoples are heavily concentrated in the four northeastern provinces of Ratanakiri, Mondolkiri, Stung Treng, and Kratie-representing 66, 71.1,6.6 and 8.3 percent of the total population within these provinces.
The education indicators of ethnic minorities and highland peoples are much lower than the national average. These groups tend to l ive in remote or mountainous areas. There are about 414 remote schools in Cambodia, with around 68,000 students and 1,000 certified government teachers. The net enrollment in remote schools i s 76 percent, compared to the national average o f 93 percent. Repetition rates in remote schools are around 17 percent, twice the national average, while drop-out rates range from 17 percent in grade 3 to 44 percent in grade 6. These statistics are significantly higher than the national average, which range between 9 percent in grade 3 and 15 percent in grade 1. Literacy rates for ethnic minority groups and highland peoples are lower than lowlands peoples and other groups. Cambodia’s national literacy rate i s 67 percent and for Ratanakiri province, the literacy rate i s only 23 percent. The literacy rate for ethnic minorities i s 26 percent as opposed to a national average o f 63 percent. The gender gap in literacy i s also higher in ethnic minority communities. Female literacy rate for ethnic minorities i s 17 percent vis-8-vis a national literacy rate for females of 55 percent. L ike gender disparities, variations in enrollment rates grow more acute at higher levels of education.
Language literacy i s also a serious problem. Language barriers make i t difficult for these groups to take full advantage o f the education system. For teaching and learning to take place, i t i s essential that teachers and students are able to communicate with one another and understand textbooks and reading materials.
Lack o f qualified teaching staff i s another important factor contributing to the poor educational status o f disadvantaged groups. In Cambodia, the national Pupil Teacher Ratio (PTR) i s 57 compared with a PTR of 64 in remote schools. The level of a teacher’s general education i s significantly lower in remote areas than the national average (as shown in Table 1 below). This w i l l have a significant impact on student performance. Di f f icul t l iv ing conditions make i t hard to retain qualified teachers in remote and highland areas. This situation translates into an inequitable deployment of teachers throughout the country. L o w salaries and lack of support lead to absenteeism and high turnover rates. Lack o f female teachers, ethnic minorities in the teaching force and role models can also negatively affect enrollment and performance of students, especially girls.
Table 1: Education Levels o f Teachers in National and Remote Areas Primary Lower- Upper-secondary Graduate
secondarv National 3,431 7.2% 35,038 73.5% 9,023 18.9% 162 17% Remote Schools 539 54.6% 369 37.4% 78 7.9% 0 0%
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Availability o f education facilities and services i s also a common cause for poor participation and achievement in schools among disadvantaged groups. There are about 38 1 primary schools in the Northeastern provinces, mostly in a dilapidated state. Only 99 of these schools are complete, that i s they offer the full grade 1 to grade 6 cycle. Oftentimes, the curriculum content i s irrelevant for the local realities that ethnic minorities face.
The direct and opportunity costs of sending children to school may outweigh i t s benefits, especially in light of incomplete schools, inadequate teaching staff and lack of textbooks and basic resource availability.
Addressing ethnic minority concerns The project strives to support the ESP strategies for remote area teachers b y mainstreaming interventions that w i l l positively impact ethnic minorities and highland peoples through the reduction of barriers to quality education. The project adopts a pro-poor targeting approach that w i l l capture areas that inherently contain ethnic minorities. Some o f the interventions propounded include:
0 Provision of lower secondary schools in communes without them and complete incomplete primary schools in order to bring educational facilities closer to intended beneficiaries.
0 Reduction of direct and indirect costs of sending children to school through scholarships targeting children in communes where ethnic minority people reside.
0 Promotion of teacher professional capacity and development o f indigenous peoples for classroom instruction; backing to vernacular language instruction in schools, where appropriate, through demand-driven in-service teacher training opportunities.
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Annex 13: Promoting Good Governance
CAMBODIA: Education Sector Support Project
Effective governance has emerged as a key concern in Cambodia in recent times. I t has been raised as an important issue for voters during the last parliamentary elections in July 2003. I t has also appeared prominently in a variety o f stakeholder surveys. There i s an increasing consensus that lack of good governance impedes private sector development and, in broader terms, national economic growth.
Addressing governance constraints i s a high priority. There i s an increasing demand for public financial management and administration reform in order to improve resource allocation and transfers as well as social service delivery administration and management. At the same time, communities need to find their voice in the development planning process and exercise greater accountability over results.
Citizens are limited by (a) a lack o f opportunity to influence policies at national and sub-national levels that have a direct impact on their lives; (b) scarce access to essential information at local levels; (c) limited authority, administrative/financial capacity and resources to accelerate development at village and commune levels; and (d) inadequate means for dispute resolutions or channels for improving accountability of public officials due to the absence o f the rule of law. Capacity constraints in Government often reflect the lack of empowerment o f individuals to act than the need for more training.
The National Poverty Reduction Strategy proposes to strengthen institutions, combat corruption and improve governance (including reforming civ i l service administration, the legal and judicial system, and public expenditure and financial management).
Promoting good governance One of the key objectives o f CESSP i s to enhance decentralized quality education service delivery b y strengthening the accountability loop between school service providers and community members. Areas o f intervention include:
Institutionalizing the role o f communities in the daily l i f e o f schools in order to inspire t rust in their capacity to manage human and financial resources and breed confidence about the value o f the services they provide.
Encouraging community voice in decision-making, through participation in school planning processes, commune EFA councils and scholarship program local management committees.
Promoting accountability for results and transparency in resource allocation b y encouraging stakeholder feedback mechanisms, public displays o f information and community outreach efforts regarding schooling services, student outcomes, budgets and expenditures.
Community contracting for procurement of c iv i l works so as to enable timeliness, quality and efficiency throughout the construction cycle in hard-to-reach areas.
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Encouraging transparent student targeting/selection mechanisms and usage of scholarship funds at the school level.
Monitoring the efficiency of public expenditure management through collaborations with an ongoing medium-term Public Expenditure Tracking Surveys series.
Increasing information access and opening a channel of complaints during the procurement o f goods and services.
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I
P
Y
0 c -
8 > 'G .E
c .-
N 00
Annex 15: School Monitoring Form
CAMBODIA: Education Sector Support Project
Shift:
Name of School: Community: EMIS Code:
What time did the children enter the classroom to begin
classes?
Cluster: Commune: District: Province:
How much time did the children spend in break
time?
Date(s) of Visit(s): Day 1: Time Began: Time Ended: Day 2: Time Began: Time Ended:
What time did How many hours school end and of teaching did the
children leave to children receive? go home?
Name of Enumerator(s): Enumerator 1 : Enumerator 2:
How many shifts in this school? Morning Afternoon Night
Mornin
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SECTION 1: SCHOOL DATA SUMMARIES
Instructions: Please fill out the fol lowing tables.
Table 1. Enrollments and Attendance for Current and Previous Years
Enrollment Grade and Beginning of
Section 200512006
I Grade 7 Section A I I Grade 7 Section B Grade 7 Section C Grade 7 Section D
I Grade 7 SectionE I I
Grade 7 Sectiurl n I Grade 7 Section I I I
I Grade7 Total I Grade 8 Section A I Grade 8 Section B I Grade 8 Section C I Grade 8 Section D I Grade 8 Section E I Grade 8 Section F I Grade 8 Section G I Grade 8 Section H I
Grade 8 Total
Grade 9 Section A Grade 9 Section B Grade 9 Section C Grade 9 Section D Grade 9 Section E I Grade 9 Section F I
Of Total from Number in Number of Enrollment at Previous Year, How Attendance Repeaters in End of Many Enrolled in
Today 200512006 200412005 School in
Boys I Girls Boys I Girls Boys I Girls Boys I Girls 200512006?
,
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Table 2. Teacher Summary
Total Experience Teacher Gender Age Experience in this
(in years) School Grade7 Number 1 F M
In Attendance
Yes No
I f No, what i s reason today? for absence?
Grade7 Number 2 Grade7 Number 3 Grade 7 Number 4 Crrade7Number5
F M Yes No F M Yes No
' F M Yes No F M Yes No
Grade7Number7 I F M I Grade7Number9 I F M I I Yes No I
I Yes No I
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Grade7Number8 I F M I I Yes No I
SECTION 2. MONITORING OBSERVATIONS: SCHOOL LEVEL
1. School Development Planning and Financial Record-keeping
Instructions: For this part o f the instrument it w i l l be necessary to speak with the Director or other school personnel in charge o f records. I t i s important to actually observe information, when possible, instead of relying completely on answers from school personnel.
3. Are current financial accounts available and up-to-date? 4. Are past financial records accessible and fi led efficiently?
I 5. Are training dans accessible and filed efficientlv? I I I I 6. Does the school have an action d a n or school develoDment dan? I I I
7. Does the school have a long term plan? 8. Does the school produce an annual report? 9. Does the school produce a semester report?
10. I s the Director able to provide quick and concise answers to these questions about information? D o they appear to be knowledgeable about what terms l ike repetition rates, drop-out rates, etc. refer to? Do they quickly respond to questions about how these numbers have chanped in recent vears?
10. H o w would you classify the school information regime overall? (1-5 Points, mark one only)
0 5. Records and information are immediately accessible and appear to be updated regularly and used for planning and providing information to teachers, staff, parents, supervisors, etc.
0 4. Records and information exist and are generally accessible but do not appear to be frequently used.
0 3. Records and information exist and are easily retrieved by Director but he/she cannot comment on them and i t does not appear they are used by staff, parents, etc.
2. Records and information exist but are diff icult to retrieve and do not appear to be used by anyone.
1 0 1. School appears to have litt le or n o record keeping.
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11. How would you classify the transparency of financial transactions? (1-3 Points, mark one)
0 3. There are complete records o f income and expenditure on public display, covering all
0 2. There are records o f income and expenditure on public display, but these appear to be
financial resources-PAP, credit scheme, other
incomplete and do not provide complete explanations
I 0 1. There are no financial statements on public display.
2. Community Participation
Instructions: In this section i t i s also important to rely on actual observations, when possible, instead o f asking school personnel. In some cases i t may be difficult to determine what i s really happening in the school.
I I Yes I No I I 1. Are there records o f meetings between the school and Darents or the communitv? I I I
2. Are there community-sponsored building projects?
3. Does the school have specific actions planned to involve parents and the communitv in the school?
4. Can the director name an activity (or activities) in which the school i s working to help the community (child care, etc.?)?
I 5. I s there a communitv notice board? I I I If Yes, does i t have information on the date for children to register for enrolment? If Yes, does i t have information on education campaign events?
6. Are there records of LCSC or school committee meetings?
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7. H o w would you classify the involvement o f the community in decision-making and/or implementation process? (1-3 Points, mark one only)
0 3. The school director can cite examples where the wider community and not just members o f official bodies such as School Support Committees or the LCSC are involved in decision- making processes and/or implementation activities.
0 2. The school director can cite examples o f community involvement in decision-making r processes and/or implementation activities. However, further discussion suggests that this “community involvement” in actual decision-making or implementation o f activities tends to be restricted to 1 or 2 community members on official bodies such as School Support Committees or the LCSC. The involvement o f the wider community tends to be one o f fundraising or providing labor for repair or construction.
0 1. There i s no evidence (minutes o f meetings, etc.) that any members o f the community are involved in decision-making processes or implementation o f activities. The community i s not involved, or i f involved, i t tends to be a l imited role o f fundraising or providing labor for repair or construction.
8. I s there evidence that children in the community have the opportunity to learn f rom community members? (1-3 Points, mark one only)
3. The school implements activities whereby children have the opportunity to learn f rom community members, and these activities are registered and part o f an on-going process. Examples include l i fe s k i l l s activities and work training.
0 2. The Director can cite specific instances where children have had the opportunity to learn f rom community members but this does not appear to be an institutionalized component o f school life.
[7 1. There i s no evidence o f any activities where children have the opportunity to learn f rom community members.
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3. School Policy
Yes 1. Does the school have a monthly or semester action plan to support children having learning problemshelow average score? 2. Does the school have specific records o f characteristics and problems o f each chi ld
Instructions: This section i s designed to get at policies that are actually in place in the school, and not based solely on whether or not the Director says they are. This requires asking follow-up questions to verify that activities that are identified b y the Director or other personnel are really taking place.
No
who has learning difficulties? 2. Does the school organize child clubs at home, so that children who l ive near each other can ,learn together? 4. Does the school have specific information on children who have dropped out o f school? 5. Does the school organize programs for special support for children who have very bad l iving conditions bv movidinn items such as clothes. learning materials. etc.?
I 6. Does the school have records o f height and weight for each student? I I I " v
7. Does the school have any child clubs organized at the school?
8. Does the school have a Committee o f the School/Children Council that carries out sDecific functions?
Yes? L i s t examples:
I 9. I s there a svstem for the use and uukeeD o f latrines? I 10. Are pupils trained in the use and upkeep o f latrines every year?
11. H o w would you classify the time management during the two-day school visit? (1-4 Points, mark one only)
0 4. Opening and closing times o f school are respected. I t i s observed that teachers are in their classrooms during lesson-time. Children are allowed to play at the correct times and the scheduled play-time and class shif ts are adhered to. Very few children are visible on the grounds during class time.
3. Opening and closing times o f school are respected. I t i s observed that teachers are in their classrooms during lesson-time. Children are allowed to play at the correct times and the scheduled play-time i s adhered to. But some teachers do not return to their classrooms after play time quickly or there i s a delay between classes when students change classes.
[7 2. Opening and closing times of school are respected. I t i s observed that teachers are in their classrooms during lesson-time. However, children are observed out o f the class and the breaks in between classes or for play-time are excessively long.
1. Opening and closing times o f school are not respected as students or teachers are late to enter the classrooms and/or leave early before class times are over.
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12. I s there evidence that the school has a system for identifying children in the community who are eligible to enroll in school and which works to get them enrolled? (1-4 Points, mark one only)
0 4. The school has a system that identifies children who are eligible to enroll in school and makes note o f particularly vulnerable children. Information i s wel l presented, and the Director or school personnel can point to actual evidence o f this. There i s also evidence that teachers and the community are involved in this process.
0 3. The school has a system that identifies children who are eligible to enroll in school and makes note o f particularly vulnerable children. Information i s wel l presented, and the Director or school personnel can point to actual evidence o f th is . But most o f the work appears to be done by teachers with l imited involvement by the community.
2. The school has a system that identifies children who are eligible to enroll in school and makes note o f particularly vulnerable children. However, information i s not well presented, and there i s l i tt le actual evidence that these kinds o f actions are being undertaken. I t i s not clear what the roles o f the teacher, Director, and community are.
1 1. The school has no system that identifies eligible children or at-risk children.
13. I s there evidence that the school has a system for identifying at-risk students who are currently enrolled and takes actions to keep them f rom leaving school? (1-3 Points, mark one only)
0 3. The school has a system that identifies at-risk children and takes actions to keep them enrolled in school. Things l ike student attendance are monitored, and the school has evidence o f referring or assisting in the referral o f students to health centers.
0 2. School personnel are aware o f individual problematic cases and there appears to be some contact between teachers and the Director in specific cases, but the system for identifying at-risk students are not very well developed. Most actions that have been undertaken have been individual teacher initiatives.
0 1. The school has no system for identifying at-risk students and the Director cannot provide any specific examples o f students that have been identified as at-risk.
14. Dissemination of Information. (1-3 Points, mark one only)
0 3. There i s evidence o f a system in place whereby the school ensures that important information i s disseminated regularly (minutes o f meetings with community, school grant activities, etc.). Notice boards based in the community to provide information about school< activities are observed to be used regularly.
0 2. There i s evidence o f a system in place whereby the school ensures that important information i s disseminated regularly. However, there are n o notice boards based in the community that provide information about school activities.
1. There i s no evidence of a system in place whereby the school ensures that important information i s disseminated regularly.
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4. Learning Environment and School Grounds
Yes . 1. I s the schoolyard free o f l i tter? 2. Are the grounds attractive and well-maintained? 3. Does the school have any displays of flowers and shrubs that are maintained? 4. Is there a sports area? 5. I s the seller’s area clean, free o f litter and hygienic? 6. Are there facilities for the D u d s to wash their hands?
Instructions: This section wi l l be completed by wa lk ing the grounds and observing. W h e n necessary, questions can be asked of school personnel but in general this section should be completed with l i t t le input from school authorities.
No
1 7. Are the toilets accessible and beine used bv students? I I I
8. H o w would you classify the condition o f the school grounds overall? (1-3 Points, mark one only)
0 3. Litter i s not a problem in the school. Arrangements for litter collection and disposal have I been made and implementation has been successful.
0 2. Litter i s a problem in the school to some extent but the school has been seen to take some degree o f action such as placement o f rubbish bins at strategic points. However, these measures have not yet been entirely successful.
0 1. Litter i s a problem in the school and the school has not been seen to take any measures to combat this problem.
9. H o w would you classify the condition o f the toilet facilities overall? (1-3 Points, mark one only)
0 2. Latrines are available and accessible. Hygiene standards are maintained by using suitable disinfectants. There i s a supply o f water in the latrines, water containers and soap for washing hands.
0 3. Latrines are available and accessible. There i s a supply o f water in the latrines. Latrines are reasonably clean. However, hygiene standards are not as high as they should be due to lack o f suitable disinfectants for cleaning latrines or lack o f soap for washing hands.
0 1. Scenario 1: There are no toilet facilities. Scenario 2: Toilet facilities exist but there i s either no supply o f water in the latrines or the latrines are locked.
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10. H o w would you classify the availability o f clean drinking water? (1-3 Points, mark one only)
Yes a. Does the school have a library in a separate room with books and places to work and read? b. If the school has a library, I s there a trained, full-time librarian working in it? c. I f the school has a library, Are students allowed to visit the library at any time in the day? d. I f the school has a library, Are students allowed to check out books? e. If the school has a library, i s i t used as a storage room?
[7 3. Drinking water i s available and a system i s in place that ensures that children have continuous
0 2. Drinking water i s available but difficult to access and only a small number o f children
and hygienic access to the water as they need it.
benefit.
No
m 1. There i s no clean drinking water available in the school for children. I 11. School Library Questions
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SECTION 111. SCHOOL MONITORING OBSERVATIONS: CLASSROOM LEVEL
Instructions: In each school multiple visits w i l l be made to classrooms to observe at least one entire class (number of visits to be determined in more detail later). The following items are all to be fi l led out during this visit, and should be based on observations made during the class and not on teacher opinion.
~
Lesson
Grade: Number o f pupils in class (totaygirls):
Number of pupils absent (totaygirls):
Subject:
Topic:
Time lesson began: Time lesson finished:
THE FOLLOWING QUESTIONS SHOULD BE ANSWERED DURING THE CLASS-BUT NOT AT THE BEGINNING. At least 15-20 minutes o f observation are needed to answer these.
1. H o w are children seated? (1-3 Points, mark one only)
1 0 3. Boys and girls s i t together in the classroom with no obvious separation by gender. I I [7 2. For the most part boys and girls s i t together but there i s clearly some grouping by gender. I I 1. The classroom i s very clearly separated by gender. I
2. H o w would you classify the learning intention? (1-5 Points, mark one only)
c] 5. Teacher explains learning intention of lesson and monitors it throughout the lesson. Pupils
[7 4.
understand learning intention. The learning intention i s achieved.
understand learning intention. Teacher monitors if learning intention i s achieved. Teacher states learning intention o f lesson and monitors i t throughout the lesson. Pupils
0 3. Teacher tells the learning intention of lesson and monitors it throughout the lesson. Most pupils understand it. There i s no monitoring and i t i s not clear if learning intention i s achieved.
c] 2. The learning intention i s not clear to the teacher or the pupils. Teacher does not monitor pupil learning. The learning intention i s not achieved.
I 0 1. Teacher has no learning intention for pupils. I
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3. H o w would you classify the lesson plan? (1-5 Points, mark one only)
0 5. Lesson plan i s well structured and clear. Plan i s followed throughout lesson.
0 4. Teacher has clear lesson plan. Plan i s followed throughout most o f the lesson.
0 3. Teacher has a complete up-to-date lesson plan. Teacher does not fol low plan throughout lesson.
I 0 2. Teacher has incomplete lesson plan. Teacher does not follow plan. I I 0 1. Teacher has no lesson plan. I
4. Use o f Teaching Aids by Teacher. (1-5 Points, mark one only)
I 0 5. Teacher uses teaching aids appropriately to support learning intentions. I I 0 4. Teacher uses teaching aids, and they are related to learning intention. I
3. Teacher uses teaching aids, but they are not necessary. They do not effectively support
0 2. Teacher has chosen material that i s inappropriate for the lesson. The material does not ' support the learning intention.
0 1. Teacher does not use teaching aids when this would have been useful.
learning intention.
5. H o w would you classify the use o f questions by the teacher? (1-5 Points, mark one only)
0 5. Teacher questions individual pupils for various purposes-for example, checking pupil I
understanding and eliciting information f rom pupils.
I 0 4. Teacher uses questions to check pupil understanding and fol low up to pupil responses. I I 3. Teacher asks questions to check pupil understanding but cannot fol low up the response. I 0 2. Teacher asks questions o f the pupils, but the questions do not check understanding. Pupils
0 1. Teacher does not use questions.
are not given time to respond to questions completely.
94
6. H o w would you classify the critical thinking level o f the lesson? (1-5 Points, mark one only)
0 5. Children are engaged in critical thinking tasks (Le. tasks requiring children to show understanding in the application o f the s k i l l being learned). These tasks require preparation in advance based on clear conceptual understanding by the teacher. From specific observations o f children’s portfolios or work displayed on the walls, i t can be concluded that activities o f this type encouraging critical thinking had become part o f the class routine.
understanding at either the Application or Analysis level o f the taxonomy?). These tasks require preparation in advance based on clear conceptual understanding by the teacher. However, there i s l i t t le evidence to suggest that this type o f activity had yet become part o f the regular routine.
4. Children are engaged in critical thinking tasks (i.e. tasks requiring children to show
~~
0 3. During large group explanation in the lesson observed, the teacher asked at least one question at the Application or Analysis level o f the Taxonomy (??). Children completed exercises individually or in groups from the textbook that required critical thinking. However, these exercises require l itt le preparation in advance bases on clear conceptual understanding by the teacher and i t appears that this type o f activity has yet to become part o f regular routine.
2. Children complete exercises individually or in groups f rom the textbook that require understanding at the Application or Analysis level o f the Taxonomy. However, the teacher did not ask questions other than the questions in the textbook
1. No questions at the Application or Analysis level o f the Taxonomy were asked. Children were not set tasks that required critical thinking.
7. How would you classify the use o f learning materials by children? (1-5 Points, mark one only)
0 5. All pupils use learning materials when necessary at their own initiative.
0 4. All pupils have access to learning material to manipulate, but only use when instructed to do so.
I 0 3. Most pupils have access to learning material sometimes. I I 0 2. Pupils rarely have access to learning material. I I 0 1. Pupils have no access to learning material they can manipulate. I
8. What kinds o f questions do children ask? (1-5 Points, mark one only)
0 5. Pupils ask questions for various purposes to teacher and other pupils. Pupils are supported in their questioning.
I 0 4. Pupils ask questions for help and clarification o f other pupils or teacher. I 0 3. Some pupils ask questions for help.
0 2. Pupils rarely ask questions to clarify instructions and task.
17 1. Pupils are not encouraged to ask questions.
95
9. H o w would you classify the involvement o f the students in the lesson? (1-5 Points, mark one only)
0 5. Pupils are actively involved and enthusiastic.
0 4. Most pupils participate and are interested.
0 3. Some pupils are interested but do not participate actively in the lesson.
0 2. Some pupils participate some o f the time, but most pupils are not motivated.
0 1. Pupils do not participate in the lesson. They are not motivated or interested.
10. H o w would you classify the feedback given to students during the lesson? (1-5 Points, mark one only 1
0 5. Teacher gives pupils regular feedback on their progress in the lesson. The teacher monitors
0 4. Questions are used in class to find out what pupils have learned. Comments on pupil class
throughout the lesson for pupil understanding, adapting the delivery where appropriate.
work are made to give encouragement. ~ ~~
questions, but they do not always explain to pupils why their answers are good or not.
I 0 2. Teacher does not check for understanding during the lesson.
1 0 1. Pupils receive l itt le or no feedback. I 11. H o w would you classify the use o f homework in the lesson? (1-5 Points, mark one only)
0 5. Homework i s purposeful and supports the learning intention. Homework i s unfinished work
0 4. Homework supports the learning intention and i s purposeful. Homework i s corrected, but no
or an extension activity. Homework i s corrected and comments are given.
written comments are given.
0 3. Homework i s related to the learning intention but i s not purposeful. Homework i s not corrected.
I 0 2. Homework i s given, but does not relate the learning intention. I t i s not corrected. I 1 0 1. Students do not receive homework. I
96
12. Did the following things happen during the class?
I Yes I NO 1
i. The teacher praises the class for good work j The teacher praises individual pupils for good work k The teacher praises individual pupils for special effort
THE FOLLOWING QUESTIONS SHOULD BE ANSWERED AFTER THE CLASS.
13. H o w would you classify the display in the classroom? (1-5 Points, mark one only)
0 5. There are learning displays on the walls. Student work i s displayed on walls in an organized and attractive way.
I 0 4. There are learning displays on the wall. Some pupil work i s displayed on the walls.
0 3. There are some pictures and posters on the wall. There i s no pupil work on the walls.
[7 2. Few pictures on the walls.
I [7 1. There are no wall decorations.
14. H o w would you classify the hygiene in the classroom? (1-5 Points, mark one only)
0 5. Classroom i s maintained well. I t i s very clean: no dirt, litter or food. Furniture i s clean.
0 4. Desks are clean and provide a free working area. The floor i s clean.
0 3. The floor i s clean and most desks are clean. Desks do not provide a free working area.
0 2. There i s some litter and food on the floor. Most desks are not clean.
0 1. There i s litter and food on the classroom floor and desks.
97
15. H o w would you classify the attendance records in the classroom? (1-5 Points, mark one only)
- 0 2. Attendance records are not accurately kept. Records are not always recorded daily.
0 1. No evidence of attendance records.
( 0 5 a n c e records are an up-to-date and accurate report o f attendances rather than absences. I m a n c e records are mostly accurate and up-to-date.
[ 0 3. Attendance records are recorded daily, but they are not accurate.
98
SECTION IV. GROUP DISCUSSION PROTOCOLS
Instructions: During the course of the visits the enumerators w i l l convene at least 1 group discussion each with groups of students, teachers and members of the community (separately). For students the groups should include about 12-15 students divided evenly b y boys and girls. If multiple group discussions with students take place they should be separated by grade. For teachers only one meeting i s necessary and the group should include as many teachers as possible (up to 15). For community members the enumerators should make an effort to go outside o f the school and invite locals to come to the school. Or, perhaps, students can be asked to request that their parents come to school at a fixed time to carry out a group discussion with the enumerators.
A. Student Group Discussion Checklist (Groups of 12-15, up to 30, preferably separate groups by grade)
1. 2. 3. 4. 5.
6.
7 .
8. 9.
What do you l ike best about school? What do you l ike least about school? What are the biggest problems at the school? What are your suggestions for improving schooling at this school? Do you know o f children in your community who are eligible to come to school but do not?
a. If yes, why do these children not come to school? b. I f yes, what do you think i s the best way to convince these children to come to
school?
a. I f yes, why did they drop out of school? b. I f yes, what do you think i s the best way to convince these children to come back
to school?
a. If yes, what i s i t about this teacher (or teachers) that makes them so popular?
Do you know of children who were enrolled in this school but no longer attend?
I s there a teacher in the school that all of the children really l ike?
Do you help each other to learn? How? Do you go to the library?
a. I f yes, how often, do you check out books? b. If yes, do you go to the Lower Secondary Library or the Primary Library? c. I f yes, does the librarian help you?
10. D o you go outside the classroom to learn? a. I f yes, what activities do you do? b. How useful are these s k i l l s ?
a. I f yes, give some examples of things you are learning in school that w i l l help you in real l i fe
b. If no, what are some examples o f things that you would l ike to learn in school that w i l l help you outside o f school?
a. To learn and be able to continue on to higher schooling?
11. Do you feel the school does a good job at teaching you s k i l l s you w i l l need in life?
12. Why do you go to school?
99
b. To achieve this level and then go to work? 13. D o you feel that what you learn in this school w i l l help you when you are working? Will
i t help you to earn more money? 14. Does your teacher give you homework? How often? 15. Are there many fights at this school?
a. I f yes, do you know students who don’t l ike to come to school because o f problems with other students?
a. I f yes, for what (registration fees, examination fees, parking fees for bikes- Specify)
a. I f Yes, from what program (PAP, BETT, JFPR, BESP) b. I f Yes, i s this process fair? D o the selected children deserve the money? D o you
think they would stop going to school i f they no longer received the scholarship? c. I f Yes, i s the process transparent? Are there any abuses that you know of?
16. D o you have to pay fees at the school?
17. Does your school have any scholarship recipients?
B. Teacher Group Discussion Checklist (Groups of 12-15, perhaps by grade, up to 30)
1. 2. 3.
4. 5.
6.
7.
8.
9.
What are the main changes in your school over the last two years? What are the main changes in your classroom over the last two years? Tell us about the training you have had this school year. What are the most useful things you learned? Why were they useful? What activities do the children learn best from? D o you feel your school i s doing a good job teaching students about l i fe s k i l l s ? Give examples. What more can be done in this area? D o you have a school plan? Have you seen it? I f yes, do you feel l ike you have been included in i t s preparation? How much influence does a teacher have in this school in terms of school policy? Does the Director consult with teachers? D o teachers consult with each other about problems in the school or classroom? How independent i s each teacher? Who do you feel you are most accountable to? The Director? The community and parents? The students?
10. Have you had any supervisory visits this year? Does the supervisor enter your classroom to observe your teaching? D o you receive advice and training? I s this process productive?
process in this school whereby you can receive advice and suggestions f rom other teachers or the director?
12. I s the school able to identify teachers who are having a difficult time teaching, perhaps because they are new? If yes, what i s done to help the teachers?
13. Did you have any children enrolled at the start o f the year who are no longer attending?
11. Does the school director ever enter your classroom to observe your teaching? I s there a
a. I f yes, why are they not in school? b. I f yes, what do you think i s the best way to convince these children to come back
to school?
100
14. Does your school have any scholarship recipients? a. I f Yes, from what program (PAP, BETT, JFPR, BESP) b. If Yes, i s this process fair? Are the selected children the ones who most need the
money? c. D o you think they would stop going to school i f they no longer received the
scholarship? d. If Yes, i s the process transparent? Are there any abuses that you know of? e. I f yes, do you feel that teachers are involved enough in this process?
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Annex 16: Project Preparation and Supervision
CAMBODIA: Education Sector Support Project
Planned Actual PCN review 08/1 5/2002 06/02/2003 Init ial PID to PIC 06/09/2003 Init ial ISDS to PIC 06/09/2003 Appraisal 03/21/2003 11/29/2004 Ne go tiations 01/3 1/2005 021 1712005 Board/RVP approval 05/12/2005 Planned date of effectiveness 08/11/2005 Planned date of mid-term review 09/01/2008 Planned closing date 12/3 1/20 10
Bank staff and consultants who worked on the project included:
Name Unit Title Luis Benveniste EASHD Education SpecialisVTeam Leader Rosemary Bellew HDNED Lead Education Specialist Carol Hau-Lai Chen Ba l l EASHD Sr. Operations Officer Beng Simeth EASHD Operations Officer Chandra Chakravarthi EASHD Pro gram As s i s tant Deon Fi lmer DECRG Sr. Economist Josephine Masanque M N A C S Sr. Financial Analyst Juan Manuel Moreno HDNED Sr. Education Specialist Nil Vanna EASSD Social Development Specialist Ana Revenga EASHD Lead Economist CristBbal Ridao-Can0 EASHD Economist Norbert Schady DECRG Sr. Economist Steffi Stallmeister E A S H D Young Professional Sreypov Tep EACSF Team Assistant Jennifer Thomson EAPCO Sr. Financial Management Sp. Hoi-Chan Nguyen LEGEA Senior Counsel Maria Lourdes Pardo LEGEA Counsel Alfred Picardi Consultant, Environmental
Yael Duthilleul Consultant, Teacher Education Peter Moock Consultant, Economist Ekta Kothari Consultant, Economist
Management
Key institutions responsible for preparation o f the project:
A Japan PHRD grant for US$386,600 (TF051642) was received and used for project preparation by the recipient to contract consulting services for the following preparation activities: (a) developing procedures for decentralized school improvement; (b) streamline monitoring and evaluation procedures; (c) conducting surveys for school facilities needs; (d) review teacher
102
training needs and assessing the strength and weakness of training delivery models; (e) prepare a feasibility study for a national assessment system; (f) analyze barriers to schooling for disadvantaged children; and (g) support for project management, including training for procurement, financial management, and the preparation o f a Project Implementation Plan. The grant was successfully executed b y MoEYS. All planned outputs were completed and consultant performance was satisfactory. Both the client and stakeholders benefited f rom training programs and consultative workshops.
A Poverty and Social Impact Analysis Grant for US$45,000 was awarded and used for project preparation by the Bank (a) to conduct an impact evaluation of the JFPR means-tested school subsidy based on 11,000 student application forms and (b) to explore possible alternatives for project design.
Bank funds expended to date on project preparation: 1. Bank resources: US$456,529 2. Trust funds: US$315,432 3. Total: US$77 1,962
Estimated Approval and Supervision costs: 1. Remaining costs to approval: US$ 5,000 2. Estimated annual supervision cost: U S $90,000
103
Annex 17: Documents in the Project File
CAMBODIA: Education Sector Support Project
Background
Asian Development Bank. Second Education Sector Development Program, Memorandum of Understanding. Manila, 2004.
Ministry of Education Youth and Sports (MoEYS). Education for All National Plan 2003-2015. Phnom Penh, 2003.
Ministry of Education Youth and Sports (MoEYS). Education Strategic Plan (ESP) 2004/08. Phnom Penh, August 2004.
Ministry of Education Youth and Sports (MoEYS). Education Strategic Plan (ESP) 2004/08: Strategic Briefing Notes and Papers for Senior ESP Policy and Technical Workforces. Phnom Penh, May 2004.
Ministry of Education Youth and Sports (MoEYS). Education Sector Support Program (ESSP) 2004/08. Phnom Penh, December 2004.
Ministry of Education Youth and Sports (MoEYS). ESSP Review 2004: Education Sector Performance Report. Phnom Penh, December 2004.
Royal Government of Cambodia. National Poverty Reduction Strategy. Phnom Penh, 2002.
World Bank. Enhancing Service Delivery through Improved Resource Allocation and Institutional Reform: Integrated Fiduciary Assessment and Public Expenditure Review (IFAPER). Washington, DC, 2003.
Expanding educational facilities in poor and underserved areas
Asian Development Bank. Report on Evaluation of Community-Built Schools. Phnom Penh, September 2002.
Asian Development Bank. ESSP-ESDP School Facilities Implementation Guidelines for Delegated Provinces. Phnom Penh, February 2003.
Construction et Rehabilitation des Ecoles Primaires. Final Report. Phnom Penh, November 200 1.
Kampuchea Development Friendship Organization. Study of Participatory School Construction in Cambodia (JICA). Phnom Penh, January 2002.
Ministry of Education Youth and Sports (MoEYS). Operational Manual for the Flood Emergency Rehabilitation Project. Phnom Penh, 2001,
104
Ministry of Education Youth and Sports (MoEYS). Expanding educational facilities in poor and underserved areas, 2 volumes. Prepared under PHRD Grant TF05 1642. Phnom Penh, April 2004.
Mike Ratcliffe, Chris Perry and James Lee. Phasing-Out Incomplete Primary Schools 2003-06. A preliminary discussion paper prepared for the MoEYS. Phnom Penh, February 2003.
Mike Ratcliffe and James Lee. Rapid Expansion of Access to Lower Secondary Schooling for the Poorest Communes. Proposed Innovative Approach. Phnom Penh, February 2003.
Samantha de Silva. Community-based Contracting: A Review of Stakeholder Experience. Washington, DC, 2000.
Samantha de Silva. Communities Taking the Lead: A Handbook on Direct on Financing of Community Subprojects. Washington, 2002.
Reducing access barriers for disadvantaged children
KAPE. Reporting Results of Preparatory Survey for grade 7 Girls’ Scholarship Program. Kampong Cham, September 2000.
KAPE. Situation Analysis and Strategic Options: Assistance to Poor Girls and Indigenous Children. Interim Report No. 1. Phnom Penh, December 2001.
KAPE. Student Incentives Program to Increase Educational Access and Equity: Proposed Program Design. Phnom Penh, March 2002.
ADB. Memorandum of Understanding between RGOC and ADB for the Proposed Grant Assistance from the JFPR to the Kingdom of Cambodia for Targeted Assistance for Education of Poor Girls and Indigenous Children. April 2002.
KAPE. Final Report: Girls ’ Education Initiative. Kampong Cham, September 2002.
Keng Chan Sopheak. “Educational Participation in Rural Cambodia: Who Stayed Enrolled in Schools? In The 6t’1 Socio-Cultural Research Congress on Cambodia, pp. 50-65. Phnom Penh, 2004.
Ministry of Education Youth and Sports (MoEYS). Access Barriers Report, 2 volumes. Prepared under PHRD Grant TF051642. Phnom Penh, March 2004.
Ministry of Education Youth and Sports (MoEYS). Scholarship Program for Poor Gir l Students and Students in Ethnic Minority Areas. Program Implementation Manual. Phnom Penh, February 2003.
105
NGO Education Partnership. NGO Role in Respect to Implementation of National Level Scholarship Programs. Phnom Penh, no date.
Strengthening decentralized quality education service delivery
Kurt Bredenberg. Cluster School Development in Cambodia: Analysis of Process and Outcomes. Phnom Penh, July 2002.
Kurt Bredenberg and Mike Ratcliffe. Education Decentralization and Cluster Review Study: Interim Report. Phnom Penh, August 2002.
Sitha Chhinh and Yoshinori Tabata. “Teacher factors and mathematics achievement of Cambodian urban primary school teachers.” Mimeo, 2002.
Richard Geeves. “Similarities, differences and viability of various models of support to cluster schools in Cambodia. UNICEF/SIDA, Phnom Penh, December 2000.
Kampuchean Action for Primary Education. A Service Menu to Facilitate Cluster School Development in Cambodian Primary Schools. Phnom Penh, 1999.
Frances Kemmerer. Incentives for Primary Teaching: Status and Issues. Project Preparatory Study No.6. Prepared for the MoEYS. Phnom Penh, no date.
Karen Knight and Kurt MacLeod. Integration of Teachers’ Voices into Education for Al l in Cambodia. International Labor Organization, Geneva, 2004.
Ministry of Education Youth and Sports (MoEYS). School Clusters and Decentralization. Prepared under PHRD Grant TF051642. Phnom Penh, February 2004.
Ministry of Education Youth and Sports (MoEYS). School Clusters and Capacity Building, 2 volumes. Prepared under PHRD Grant TF05 1642. Phnom Penh, March 2004.
Ministry of Education Youth and Sports (MoEYS). Capacity Building for Quality Improvements in Decentralized Basic Education. Prepared under PHRD Grant TF051642. Phnom Penh, April 2004.
Ministry of Education Youth and Sports (MoEYS). Quality Enhancement for Pre-Service and In-Service Teacher Training. Prepared under PHRD Grant TF05 1642. Phnom Penh, April 2004.
Ministry of Education Youth and Sports (MoEYS). EQIP School Grants Program Evaluation: Final Report. Phnom Penh, April 2004.
Ministry of Education Youth and Sports (MoEYS). School Clusters as a National Strategy for Improving the Quality of Education. UNICEF/SIDA, Phnom Penh, October 2003.
106
Ministry of Education Youth and Sports (MoEYS). Master Plan for Development of Teacher Education. 2001-2005. Phnom Penh, 2000.
World Education. Evaluation of the Impact of the Education Quality Improvement Project (EQIP). Phnom Penh, November 2002.
Establishing a national assessment monitoring system
Ministry of Education Youth and Sports (MoEYS). Education Policy, National Assessment and Quality Assurance in Cambodia: Technical Discussion with Implementation Plan. Prepared under PHRD Grant TF051642. Phnom Penh, May 2004.
Ministry of Education Youth and Sports (MoEYS). Baseline Assessment of Pupil Achievement in Khmer and Mathematics in the Primary Schools. Phnom Penh, 1996.
George Taylor. Quality Improvement and Assurance. Phnom Penh, 2001.
Mainstreaming Gender
Asian Development Bank. Using Both Hands: Women and Education in Cambodia. Manila, 1995.
Kurt Bredenberg, Lon Somanee and M a Sopheap. Gender and Education in Cambodia: Historical Trends and the Way Forward. Phnom Penh, 2003.
Herz, Barbara and Sperling, Gene B. What Works in Girl ’s Education: Evidence and Policies from the Developing World. Washington, DC, 2004.
Ministry of Education Youth and Sports (MoEYS). Survey on Girls’ Education in Cambodia. Phnom Penh, July 1998.
UNIFEM, World Bank, ADB, UNDP and DFIDIUK. A Fair Share for Women: Cambodia Gender Assessment. Phnom Penh, April 2004.
Velasco, Esther. “Ensuring Gender Equity in Education For All: I s Cambodia on Track?” Prospects, XXXIV, No. 1, March 2004.
Ethnic Minorities and Education Goals
Asian Development Bank. Health and Education Needs of Ethnic Minorities in the Greater Mekong Region. Manila, 2002.
Asian Development Bank. Indigenous Peopled Ethnic Minorities and Poverty Reduction- Cambodia. Manila, 2002.
107
Inter-Ministerial Committee for Highlands Peoples Development, Royal Government of Cambodia. General Policy for Highland Peoples Development. Phnom Penh, September 1997.
UNICEF. “Remote Teacher Redeployment and Retention: Two Options for Teacher Housing”. Phnom Penh, 2003.
Watt, Ron. “The Highland Children’s Education Project, Cambodia and the Remote Area Teacher Education Program, Australia-Some Connections.” In The 6th Socio-Cultural Research Congress on Cambodia, pp. 218-235. Phnom Penh, 2004.
108
Annex 18: Statement of Loans and Credits
CAMBODIA: Education Sector Support Project
Difference between expected and actual
disbursements Original Amount in US$ Millions
Proiect ID FY Puruose IBRD IDA SF GEF Cancel. Undisb. Orig. Frm. Rev’d
PO71207
PO64844
PO733 11
PO71146
PO70542
PO70875
PO71 247
PO71445
PO73394
PO52006
PO59971
PO60003
PO65798
PO04030
PO50601
PO58841
PO45629
PO04033
2004
2004
2003
2003
2003
2002
2002
2002
200 1
2000
2000 2000
2000
1999
1999
1999
1998
1997
KH-Prov. & Rural Infrastructure Project
KH-Rural Electrif. & Transmn
KH-Provincial and Periurban Water
KH- Rural Investment and Local Governance KH-Health Sector Support Project
KH-Land Management and Administration
KH - Eco. & PS Capacity Building Project
KH - Demobilization and Reintegration
KH-Flood Emergency Rehabilitation Proj
KH Bio and Prot Area
KH-Education Quality Improvement KH-Forest Concession Mgt & Control Pilot
KH-Bio & Protec Areas
KH-Road Rehab.
KH-Social Fund I1
KH-Northeast Village
KH-Urban Water Supply
KH-Agricultural Productivity Improvement
0.00 0.00 0.00 0.00
0.00
0.00 0.00 0.00
0.00 0.00
0.00 0.00 0.00 0.00 0.00
0.00
0.00 0.00
20.00 0.00 0.00 0.00
40.00 0.00 0.00 0.00
16.90 0.00 0.00 0.00
22.00 0.00 0.00 0.00
17.20 0.00 0.00 0.00
24.30 0.00 0.00 0.00
5.50 0.00 0.00 0.00 18.40 0.00 0.00 6.27
35.00 0.00 0.00 0.00 0.00 0.00 2.75 0.00 5.00 0.00 0.00 0.00 4.82 0.00 0.00 0.00 1.91 0.00 0.00 0.00
45.31 0.00 0.00 0.00 25.00 0.00 0.00 0.00 5.00 0.00 0.00 0.00
30.96 0.00 0.00 0.00 27.00 0.00 0.00 5.22
21.03
40.89
20.80
21.24
26.46
25.52
6.33
10.61
14.48 1.95
0.16
2.85
1.31
19.71
2.05
0.30
1.02
7.74
0.41
0.86
-0.46
0.74
-3.02
2.53
1.98
-3.95
2.28
3.81 0.28
2.52
0.73
19.36
-7.05
0.43
1.82
13.27
0.00 0.00 0.00 0.00
0.00 -0.12
0.00
0.00 0.00 1.55 0.00
0.05
1.10
0.00 0.00 0.45
0.15
13.22
Total: 0.00 344.30 0.00 2.75 11.49 224.45 36.54 16.40
STATEMENT OF IFC’s Held and Disbursed Portfolio
In Mill ions of U S Dollars
Committed Disbursed
IFC IFC
FY Approval Company Loan Equity Quasi Partic. Loan Equity Quasi Partic.
2003 Amanresort 1.20 0.00 0.00 0.00 1.20 0.00 0.00 0.00
2000 SEF ACLEDA Bank 0.00 0.49 0.00 0.00 0.00 0.49 0.00 0.00 2003 SEF Hagar Soya 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00
Total portfolio: 1.20 0.49 0.00 0.00 1.20 0.49 0.00 0.00
109
Approvals Pending Commitment ______~ ~~
FY Approval Company Loan Equity Quasi Partic.
2004 Acleda Bank R I 0.00 0.00 0.00 0.00
2000 SEF ACLEDA Bank 0.00 0.00 0.00 0.00
Total pending commitment: 0.00 0.00 0.00 0.00
110
Annex 19: Country at a Glance
CAMBODIA: Education Sector Support Project
P O V E R T Y and SOCIAL East
Asia & Low- Cambodla Pacif ic income
2002 Population, m id-year (millions) P.5 GNI per capita (Atlas method, US$) GNI (Atlas method, US$ billions)
Population PA) 2.2
280 3.5
Average annual growth, 1996-02
Labor force (99) 2.6
M o s t recent estlmate ( latest year available, 1996-02)
Poverty (%of population belo wnationalpovertyline) 36 Urban population (%of totalpopulation) 18 Life expectancyat birth (years) 54 Infant mortality(per ~000i ive births) 90 Child malnutrition (%of children under5) 45 Access to an improved water source (%ofpopulation) 30 Illiteracy (%ofpopulation age E+) 31 Gross primaryenrollment (%of schooi-age population) 110
Male li7 Female 103
KEY E C O N O M I C R A T I O S and LONG-TERM T R E N D S
1982 1992
GDP (US$ billions) 2.0 Gross domestic investment/GDP 9.8 Exports of goods and ServicesiGDP .. 15.7 Gross domestic savingslGDP 6.9 Gross national savingslGDP 7.6
Current account balancelGDP -4.7 Interest payments/GDP 0.0 Total debtiGDP .. 92.4 Total debt servicdexports Present value of debtiGDP Present value of debtiexports
1982-92 1992-02 2001 (average annualgrordh) GDP 5.5 4.8 6.3 GDP per capita 2.2 2 2 4.2
1,838 950
1,740
1.0 1.2
38 69 33 15 76 13
x)6 x)5 106
2001
3.4 i7.9
53.2 9.8
-3.1 0.1
79.3 1.2
67.5 133.8
2,495 430
1,072
1.9 2.3
30 59 81
76 37 95
103 87
2002
3.7
0 2 79.1
2002 2002-06
4.5 2.6
S T R U C T U R E o f the E C O N O M Y
(“A o f GDP j Agriculture Industry
Services
Private consumption General government consumption Imports of goods and services
M anufacturing
(average annualgrowth) Agriculture Industry
Services
Private consumption General government consumption Gross domestic investment Imports of goods and services
Manufacturing
1982 1992
.. 47.8
.. 13.2 5.1
.. 39.1
.. 83.6 9.5
.. 18.6
1982-92 1992-02
5.1 1.7 6 .O 9.8 6.1 9.2 5.8 5.4
1.7 3.1
.. 10.5
.. P.2
2001
36.9 21.9
41.2
84.2 6.0
61.3
2001
3.9 15.5
2.5
2.2 13.1
25.5 P.6
2002
2002
)evelopment diamond’
Life expectancy
-
SNI Gross )er primary :apita nrollment
L
Access to improved water source
-- Cam bo dia Lo w-income group
Economic ratios*
Trade
1
Indebtedness
----Cambodia ~ Low-income group
Growth o f Investment and G D P ( O h )
30
15
0
.15
I -GDI -GDP I
Growth o f exports and Imports (%)
60 T
40
20
0
-20 2
----Exports d I I T p o r 1 s I
111
Cambodia P R I C E S and G O V E R N M E N T F I N A N C E
D o m e s t i c p r i c e s (%change) Consumer prices Implicit GDP deflator
1982
G o v e r n m e n t f i n a n c e (%of GDP, includes current grants) Current revenue Current budget balance Overall surplus/deficit
T R A D E
(US$ millions) Totalexports (fob)
Rubber Logsandsamtimber Manufactures
Total imports (cif) Food Fuel and energy Capital goods
Export price Index(W95=WO) Import price index(W95=X)0) Terms o f trade (W95=W0)
B A L A N C E o f P A Y M E N T S
(US$ millions) Exports of goods and services Imports of goods and services
. Resource balance
1982
1982
Net income Net current transfers
Current account balance
Financing items (net) Changes in net reserves
M e m o : Reserves including gold (US$ millions) Conversion rate (DEC, loca//US$)
E X T E R N A L D E B T and R E S O U R C E FLOWS
(US5 millions) 1982
9 IBRD 0 IDA 0
Total debt outstanding and disbursed
Total debt service IB RD IDA
Composition of net resource flows Official grants Official creditors Private creditors Foreign direct investment Portfolio equity
World Bank program Commitments Disbursements Principal repayments
0 0 0
21 0 0 0 0
0 0 0
1992
75.4
6.5 -3.0 -3.3
1992
265 e
25
351
1992
314 373 -59
0 14
-93
1266.6
1992
1,831 0 0
U 0 0
99 0 0
33 0
0 0 0
2001
-0.6 -2.6
P .2 1.5
-6.0
2001
1,451
1,950
2001
1,681 2,006 -325
-118
-105
l71 -66
3,916.3
2001
2,703 0
238
21 0 1
186 91 0
113 0
63 40 0
2002
3.1
2002
2002
3,gP.l
2002
2,907 0
306
21 0 2
146 0
30 47 0
Inflation ( O h )
~ 3 0 7
Inflation ( O h )
I -GDPdeflator -CPI 1
Export and import levels (US$ mill.) r- 96 97 98 99 00 01 02
Exports nlrrports
Current account balance t o G D P ("A)
:ompor l t lon o f 2002 debt (US$ mill.:
G 217 B 306
\ - IBRD E- Bilaterai I - IDA D-Otkrrmltilaterai F-Private : - I M F G - Short-ter
112