Completion Report

Project Numbers: 32312; 32312-02 Loan Number: 2306; Grant Number: 0069 September 2014

Lao People’s Democratic Republic: Basic Education Sector Development Program

This document is being disclosed to the public in accordance with ADB’s Public Communications Policy 2011.

CURRENCY EQUIVALENTS

Currency Unit – kip (KN)

At Appraisal At Project Completion (23 November 2006) (31 March 2013)

KN1.00 = $0.00010 $0.00013 $1.00 = KN9,847.50 KN7,750.14

ABBREVIATIONS

ADB – Asian Development Bank ASCF – annual school census form BESDP – Basic Education Sector Development Program DPO – development partner organization EDGP – Education Development Grant Program GEGDP – Gender and Ethnic Group Development Plan GER – gross enrollment ratio Lao PDR – Lao People's Democratic Republic LDC – least developed country LSE – lower secondary education LSSGP – Lower Secondary Student Grant Program MOES – Ministry of Education and Sports MOF – Ministry of Finance MTEF – medium-term expenditure framework ODA – official development assistance PES – provincial education service PMO – Prime Minister's Office PMU – project management unit RIES – Research Institute for Education Sciences SDR – special drawing right SDP – sector development program SESDP – Secondary Education Sector Development Program SY – school year USE – upper secondary education

NOTES

(i) The fiscal year (FY) of the government and its agencies ends on 30 September. FY before a calendar year denotes the year in which the fiscal year ends, e.g., FY2009 ends on 30 September 2009.

(ii) In this report, "$" refers to US dollars.

Vice-President S.P. Groff, Operations 2 Director General J. Nugent, Southeast Asia Department (SERD) Director N. LaRocque, Officer-in-Charge, Human and Social Development

Division, SERD Team leader C. Spohr, Principal Social Sector Specialist, SERD Team members E. Arienda, Operations Assistant, SERD

K. Chanthy, Senior Project Officer (Social Sector), SERD A. De Guzman-Bacasmas, Project Analyst, SERD T. Saphakdy, Social Development Officer (Gender), SERD

In preparing any country program or strategy, financing any project, or by making any designation of or reference to a particular territory or geographic area in this document, the Asian Development Bank does not intend to make any judgments as to the legal or other status of any territory or area.

CONTENTS

Page

BASIC DATA ii

I. PROGRAM DESCRIPTION 1

II. EVALUATION OF DESIGN AND IMPLEMENTATION 1

A. Relevance of Design and Formulation 1 B. Program and Project Outputs 2 C. Program and Project Costs 7 D. Disbursements 7 E. Project Schedule 8 F. Implementation Arrangements 8 G. Conditions and Covenants 9 H. Consultant Recruitment and Procurement 9 I. Performance of Consultants, Contractors, and Suppliers 9 J. Performance of the Borrower and the Executing Agency 10 K. Performance of the Asian Development Bank 10

III. EVALUATION OF PERFORMANCE 10

A. Relevance 10 B. Effectiveness in Achieving Outcome 11 C. Efficiency in Achieving Outcome and Outputs 12 D. Preliminary Assessment of Sustainability 12 E. Impact 13

IV. OVERALL ASSESSMENT AND RECOMMENDATIONS 14

A. Overall Assessment 14 B. Lessons 14 C. Recommendations 15

APPENDIXES

1. Status of Compliance with BESDP Tranche Conditions 16

2. Program Design and Monitoring Framework Targets and Results 21

3. Project Costs at Grant Appraisal and Closure by Cost Category and Financier 25

4. Status of Compliance with Project Covenants 26

5. Summary of Gender Equality Results and Achievements 33

BASIC DATA A. Loan Identification 1. Country 2. Loan/Grant Numbers 3. Project Title 4. Borrower/Recipient 5. Executing Agency 6. Amount of Loan a. Program Loan b. Grant 7. Project Completion Report Number

Lao People’s Democratic Republic Loan 2306/Grant 0069 Basic Education Sector Development Program Government of Lao People’s Democratic Republic Ministry of Education and Sports SDR6,008,000 ($8.9 million equivalent) $12,660,000 PCR LAO 1493

B. Loan Data 1. Appraisal – Date Started – Date Completed 2. Loan Negotiations – Date Started – Date Completed 3. Date of Board Approval 4. Date of Loan Agreement 5. Date of Loan Effectiveness – In Loan Agreement – Actual – Number of Extensions 6. Closing Date a. Program Loan – In Loan Agreement – Actual – Number of Extensions b. Grant – In Grant Agreement – Actual – Number of Extensions 7. Terms of Loan – Interest Rate – Maturity (number of years) – Grace Period (number of years) 8. Terms of Relending (if any) – Interest Rate – Maturity (number of years) – Grace Period (number of years) – Second-Step Borrower

26 July 2006 4 August 2006 20 November 2006 23 November 2006 20 December 2006 21 March 2007 19 June 2007 29 October 2007 2 30 April 2010 8 June 2011 2 30 September 2012 10 April 2014 1 1.0% per annum (1.5% thereafter) 24 8 Not Applicable

iii

9. Disbursements a. Dates 1. Basic Education Sector Development Program (Loan 2306-LAO)

Initial Disbursement

19 December 2007

Final Disbursement

8 June 2011

Time Interval

41 months

Effective Date

29 October 2007

Original Closing Date

30 April 2010

Time Interval

30 months

Revised Closing Date

8 June 2011

Time Interval

31 months

2. Basic Education Sector Development Project (Grant 0069-LAO)

Initial Disbursement

5 May 2008

Final Disbursement

10 April 2014

Time Interval

71 months

Effective Date

29 October 2007

Original Closing Date

30 September 2012

Time Interval

59 months

Revised Closing Date

30 September 2013

Time Interval

71 months

b. Amount ($ million)

1. Basic Education Sector Development Program (Loan 2306-LAO)

Tranche No. Date Disbursed SDRa

$ equivalent

Tranche 1 19 December 2007 2.025 3.184 Tranche 2 31 March 2010 2.025 3.065 Tranche 3 8 June 2011 1.958 3.141

Total 6.008 9.390

a

Foreign exchange rate used for Tranche 1: SDR1 = 1.572; Tranche 2: SDR1 = 1.514; and Tranche 3: SDR1 = 1.604.

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2. Basic Education Sector Development Project (Grant 0069-LAO)

Category Description Original

Allocation Revised

Allocation Amount

Disbursed Undisbursed

Amounta

3201 Works

2.62

3.84

3.85 (0.01)

3601 Equipment, Furniture

1.95

1.16

1.16 (0.00)

3701 Materials

0.83

1.03

1.03 (0.00)

3801 Training

3.22

3.79

3.81 (0.02)

4801 School Development Fund

0.80

0.83

0.82

0.01

4201

Studies (Impact Assessment, Monitoring and Evaluation

0.20

0.10

0.05

0.05

3901 Project Management

0.23

0.38

0.39 (0.00)

3101 Consulting Services

1.69

1.53

1.52 0.00

4901 Unallocated

1.12

0.00

- -

Total

12.66

12.66

12.64 0.02 a Amount canceled on 10 April 2014.

10. Local Costs (Financed) - Amount ($) $11.04 million - Percent of Local Costs 87.37%

- Percent of Total Cost 70.56% C. Project Data

1. Grant Cost ($million)

Cost Appraisal Estimate Actual

Foreign Exchange Cost 4.739 1.810 Local Currency Cost 11.096 14.050 Total 15.834 15.860

2. Grant Financing Plan ($million)

Cost Appraisal Estimate Actual

Implementation Costs Government Financed 3.17 3.22 ADB Financed 12.66 12.64

Other External Financing

Total 15.83 15.86

IDC Costs Borrower Financed

v

ADB Financed Other External Financing

Total 15.83 15.86

ADB = Asian Development Bank, IDC = interest during construction.

3. Cost Breakdown by Project Output ($ million)

Output Appraisal

Estimate Actual

A. Base Costs 1. Expanding Lower Secondary Education Opportunities 6.83 6.91

2. Improving the Quality of Formal Primary and Secondary Education 4.42 3.93

3. Strengthening Decentralized Education Management 1.75 1.60

4. Support to Project Management 1.16 3.21

Subtotal (A)

14.15 15.65

B. Contingencies 1. Physical 0.60 0.00

2. Prices 0.87 0.00

Subtotal (B) 1.47 0.00

C. Service Charges 0.00 0.00

D. Taxes on Goods and Services 0.21 0.21

Total 15.83 15.86

4. Project Schedule

Item Appraisal Estimate Actual

Date of Contract with Consultants Q1 2007 13 March 2009 Civil Works Contract Phase I civil works Q1 2009 June 2009 Completion of Work Q2 2010 August 2010 Phase II civil works Completion of Work October 2010 Equipment and Supplies Dates First Procurement Q3 2008 24 July 2008 Last Procurement Q4 2011 7 May 2013 Other Milestones Reallocation of grant proceeds 22 February 2012 Extension of grant closing date 4 November 2011 Cancellation of $20,983.45 10 April 2014 First extension of loan closing date 7 July 2010 Second extension of loan closing date 28 April 2011 Closing of loan accounts 8 June 2011

5. Project Performance Report Ratings

Implementation Period

Ratings

Development Objectives

Implementation Progress

From 31 December 2006 to 31 August 2007 Satisfactory Satisfactory

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From 1 September 2007 to 30 September 2007 Satisfactory Unsatisfactory From 31 October 2007 to 31 March 2013 Satisfactory Satisfactory

D. Data on Asian Development Bank Missions

Name of Mission

Date

No. of Persons

No. of Person-Days

Specialization of Members

a

Inception 28–31 January 2008 4 16 a, b, d Review 1 14–18 July 2008 1 5 a Review 2 5–12 May 2009 3 18 a, e Review 3 8–16 October 2009 2 22 a, d Review 4 4–13 May 2010 4 32 a, d, e Midterm 24 November–6

December 2010 4 33 a, c, d, e

Review 6 2–6 May 2011 1 5 a Review 7 17–25 November 2011 1 11 a, e Review 8 4–8 June 2012 1 7 a, e Review 9 12–18 December 2012 1 8 a Project completion review 11–15 August 2014 3 12 a, d, e a a = project officer/mission leader, b = international staff/mission member, c = national officer, d = project analyst,

e = resident mission officer.

I. PROGRAM DESCRIPTION

1. In support of the development objectives of the Lao People's Democratic Republic (Lao PDR) and building on prior cooperation in the education sector, the Asian Development Bank (ADB) approved the Basic Education Sector Development Program (BESDP) on 20 December 2006.1 Targeting the overall outcome of expanded and equitable access to better-quality and more efficient lower secondary education (LSE), the BESDP consisted of two components: (i) a program loan (Loan 2306-LAO) of SDR6,008,000 (equivalent to $8.9 million at the time of approval), and (ii) a project grant (Grant 0069-LAO) of $12.66 million.2 The Ministry of Education and Sports (MOES) acted as the executing agency.3 2. The BESDP’s program loan aimed to promote expanded access to, equity in, and quality of education, while also strengthening the capacity of the MOES and the provincial and district bodies responsible for education administration to provide more effective decentralized planning, management, financial reporting, and budgeting for school education. As outlined in para. 7, the policy matrix set out an ambitious array of reforms clustered into 12 policy areas related to education access, quality, and financing as well as other dimensions of sector management. 3. The program loan was complemented by grant-based project support aimed at enhancing equitable access to and quality of LSE by (i) expanding opportunities to improve access and equity; (ii) integrating the basic education curriculum to account for lower secondary school expansion from three to four grades, and improved quality and relevance of LSE; and (iii) building central, provincial, and district capacity in critical areas (education management information system, budgeting and financial management, and planning). Three outputs supported achievement of these access, quality, and management objectives, as detailed in paras. 9–20. In terms of geographic coverage, civil works and other interventions aimed at expanding physical access under output 1 were targeted at sites within 20 districts in six provinces.4 Other interventions covered a larger number of areas (e.g., student scholarships and school grant support, also under output 1) or were essentially nationwide in scope (e.g., curriculum development, textbook printing and distribution, and teacher training under output 2, as well as support for education management and planning under output 3).

II. EVALUATION OF DESIGN AND IMPLEMENTATION

A. Relevance of Design and Formulation

4. The BESDP’s design was well aligned with government priorities, strategies, and policies outlined in the Sixth Socioeconomic Development Plan, Education Sector Development Plan 2006-2010, Education Strategic Vision to 2020, National Plan of Action for Education for All, and National Strategic Plan for Education Reform 2006–2015.5 The BESDP’s formulation directly aligned with government priorities in the three pillar areas of education access, quality, and management, with the BESDP’s support focusing on the secondary education subsector

1 ADB. 2006. Report and Recommendation of the President to the Board of Directors: Proposed Loan and Grant to the Lao People’s Democratic Republic for the Basic Education Sector Development Program. Manila.

2 Figures noted refer to ADB financing, and exclude government counterpart funding totaling $3.17 million.

3 The MOES was restructured from the former Ministry of Education mid-implementation. For simplicity, the current name is used throughout the text of this report.

4 Schools and classrooms were constructed and equipped at sites in Attapeu, Bokeo, Champasack, Khammouane, Luang Namtha, and Savannakhet provinces.

5 ADB project preparatory technical assistance amply supported program design dialogue; lessons are identified in paras. 48–50. ADB. 2004. Technical Assistance to the Lao People’s Democratic Republic of Preparing the Basic Education Development Project (Financed by the Japan Special Fund). Manila.

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(SES), where ADB was the sole development partner organization (DPO) positioned to provide concerted support, complementing other DPOs’ focus in primary and pre-primary education. The BESDP’s program and project components also directly aligned with several key government targets, including (i) increasing SES enrollments, particularly in LSE; (ii) extending the SES cycle from 6 to 7 years, to allow the Lao PDR to achieve the international norm of 12 years of primary and secondary education; (iii) reforming the curricular contents and shifting towards student-centered pedagogy; (iv) increasing education sector financing; and (v) contributing to the Lao PDR’s escape from least developed country (LDC) status by 2020.6 5. At project completion in 2013, the BESDP remained relevant to both government priorities—as laid out in the Education Sector Development Framework (approved in April 2009), the National Socioeconomic Development Plan 2011–2015, and other key planning documents—and ADB’s Country Partnership Strategy 2012–2016, which identified education as the first of four core sectors, with a focus on the SES and other post-primary education subsectors.7 6. Program formulation and implementation benefited from strong government ownership and stakeholder participation. Although implementation closely followed the original design, minor refinements agreed mid-implementation (see para. 29) allowed the program to (i) recover from modest start-up delays, with nearly all project activities completed by the original completion date;8 (ii) respond to contextual shifts; and (iii) effectively dovetail with follow-up ADB support through the Secondary Education Sector Development Program (SESDP), approved in 2012. B. Program and Project Outputs

1. Program Loan

7. The program loan successfully promoted critical policy reforms in three major areas: (i) expanding equitable access to basic education; (ii) improving the quality and relevance of formal basic education, and (iii) strengthening education management. Particular focal areas included (i) ensuring greater mobilization of resources to the education sector, including rationalizing budgetary allocations for education; (ii) designing and implementing an outcome-oriented budgeting and financial management system that would also lead to preparation of a medium-term expenditure framework (MTEF) for education; (iii) providing a more relevant and integrated curriculum for school education; (iv) strengthening teacher management through preparation of a recruitment and deployment plan and development of a teacher management information system; and (v) strengthening capacity for decentralized planning. The program was structured around a policy matrix that set out 18 policy conditions and 24 specific policy targets distributed across three tranches.9 As detailed in Appendix 1, the government fully complied with 22 of 24 policy targets, with the remaining 2 (related to education sector budgeting, inclusive of

6 The United Nations’ assessment of LDC status includes two education-related indicators: (i) adult literacy and (ii) SES gross enrollment rate.

7 ADB. 2011. Country Strategy and Program: Lao People’s Democratic Republic, 2012–2016. Manila.

8 The program faced delays in achieving effectiveness (in October 2008) and contracting the consultants (fielded in March 2009), owing to taxation-related issues. Except for an at-risk rating assigned briefly in September 2007, the project performance management system ratings recorded satisfactory performance throughout implementation.

9 The policy lays out (i) 2 policy conditions (each with 1 target) for the first tranche, to be released at effectiveness); (ii) 10 clustered policy conditions (with 14 specific targets) for the second tranche; and (iii) 6 clustered policy conditions (with 8 specific targets) for the third tranche.

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international assistance) missed principally because of an unexpected sharp decline in official development assistance (ODA) in fiscal year (FY) 2008.10

2. The Project Grant

8. Complementing policy achievements, the project component fully delivered the expected outputs within budget and—excepting two interventions under output 1—by the original completion date. These are outlined by output in paras. 9–20 below and in Appendix 2.

a. Output 1: Expanding Access to Formal Lower Secondary Education

9. Output 1 focused on 20 districts in six relatively poor target provinces and comprised three subcomponents: (a) promoting equitable access in poor, remote, underserved rural areas for girls and ethnic groups; (b) alleviating pressure on school facilities in high-demand, rapid-growth areas; and (c) providing targeted support for poor students and needy schools. 10. Interventions under the first two subcomponents addressed physical access constraints (i.e., the lack of schools or inadequate classrooms). The project constructed and furnished 28 new LSE buildings, including 112 standard classrooms, exceeding the original target (92 classrooms in new schools) in order to accommodate the addition of a fourth grade of LSE starting in school year (SY) 2009/10, with an associated increase in the allocation to civil works.11 In addition, the project constructed new classroom blocks at 40 schools distributed across the targeted 20 districts, comprising 144 additional classrooms, in accordance with the target in the review and recommendation of the President (RRP). Gender-segregated toilet blocks were constructed at all 68 sites, with access to safe water provided by the project and/or the community.12 11. The third subcomponent focused on development and pilot testing of two interventions— (i) student support in the form of a needs-targeted scholarship program, and (ii) school grants aimed at improving access as well as promoting learning outcomes by improving school conditions—supported by the development of related guidelines, monitoring and evaluation systems, and capacity development. To manage both programs and provide broader inputs to school management, student-parent associations13 (SPAs) were established or reconstituted in 96 schools distributed across 46 districts in 13 provinces. Launched in SY2009/10, the Lower Secondary Student Grant Program (LSSGP) provided scholarships for 1,638 poor students that were intended to cover all four years of the extended LSE cycle, with priority given to girls and children from ethnic groups. The program appears to have reduced (but not eliminated) dropout among targeted poor children, with 1,556 recipients—including 797 girls (51.0%) and 1,168

10

See ADB. 2011. Progress on Tranche Release: Lao People’s Democratic Republic: Basic Education Sector Development Program. Manila. The Lao PDR calculates education budget share inclusive of ODA but excluding debt servicing. The BESDP’s related policy targets assumed that ODA would continue the rising trend of prior years, but ODA actually fell 17% in dollar terms in FY2008, partially offsetting increases in government financing to the sector.

11 This extension of the LSE cycle appears not to have been accounted for in the original costing and target-setting. New schools contained four standard classrooms, one laboratory for teaching science subjects, and one teacher room.

12 Electricity was also provided at 63 sites, but proved inviable at 5 new schools, owing to distance from the grid. These schools were outfitted with electric fixtures in expectation of a subsequent expansion of the grid. As a possible interim solution, provision of generators was deemed unsustainable owing to the limited local capacity to fund fuel costs.

13 Also referred to as "school management committees" in some sections of the RRP. Throughout the project, women constituted at least 40% of SPA membership.

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children from ethnic groups (75.1%)—successfully completing grade 9 and many appearing to excel in school (see para. 46).14 As the second thrust, the subcomponent supported the launch and implementation of an Education Development Grant Program (EDGP) in the same 96 schools.15 Despite issues such as delays in financial reporting, payment, and liquidation, the EDGP was deemed successful and is being adapted and replicated under the follow-on, ADB-supported SESDP.16 More broadly, the EDGP appears to have at least indirectly contributed to the MOES’ introduction of school block grants in primary and secondary schools nationwide (starting in SY2011/12 and SY2012/13, respectively).17

b. Output 2: Improving Quality of Formal Basic Education

12. This output had four subcomponents: (a) developing curricula; (b) providing textbooks and learning materials; (c) training teachers; and (d) providing equipment and materials. 13. This first subcomponent was national in scope, supporting development of the Lao PDR’s new national curriculum. While focused principally on LSE, the project supported operationalization of the revised primary education subsector curriculum framework adopted by the MOES in 2007, in particular through support for finalizing the detailed curriculum for the English subject (taught in primary grades 3–5). Aligned with the new primary education subsector curriculum, the project directly supported curriculum reforms to extend the SES cycle to 7 years (allowing the Lao PDR to reach the international standard of 12 years of primary and secondary education) while strengthening the quality and relevance of the curriculum in all SES grades. In particular, the project assisted the MOES in (i) identifying detailed learning outcomes for each level and subject of SES; (ii) formulating the revised national curriculum for LSE (extended four years in duration, spanning grades 6 to 9), which was approved in 2009; (iii) developing print-ready manuscripts for new textbooks and teacher guides for all four grades of LSE; 18 and (iv) drafting an assessment framework for the new 4-year LSE curriculum. 14. Under the second subcomponent, going beyond the original scope of the project, ADB enacted a minor change in scope to shift the focus of textbook printing and distribution to (i) eliminate distribution of LSE textbooks and teacher guides based on the old curriculum as originally planned;19 (ii) concentrate resources on much larger-scale printing of new textbooks and teacher guides for the first two grades of LSE (grade 6–7) and distribution to all LSE schools nationwide, as opposed to printing and distribution to only schools in 50 districts in 6 provinces; and (iii) defer printing of the new grade 8–9 textbooks and teacher guides until expected follow-up support is available under the follow-on SESDP.20 As a result, the project printed and distributed 1.34 million textbooks and 170,000 teacher guides for LSE grades 6–7 to all schools teaching these grades nationwide, allowing the MOES to successfully commence the 14

The program allowed for replacement of initially selected scholars who dropped out during the initial years. 15

The EDGP provided three types of grants, based on school proposals for (i) consumable items for teaching and learning, (ii) minor repairs and maintenance, and (iii) income-generating activities.

16 It is noteworthy that the income-generating activities have proven sustainable: on the basis of a survey of a randomly selected subset of the 96 schools, at least 80% of participating schools appear to have increased their stock of assets purchased under the EDGP and to be generating net revenue in August 2014.

17 At the micro level, prior EDGP participation and related capacity development appears to have helped prepare the noted 96 schools to more effectively manage LSE school block grants, which were introduced in SY2012/13.

18 The project supported the MOES Research Institute of Education Sciences (RIES) in developing 100 manuscripts for textbooks and teacher guides for grades 6–9, exceeding the number of titles originally foreseen.

19 This reflected MOE priorities in view of several factors, including the emergence after appraisal of support from the Government of Korea for provision of existing textbooks, the impending phase-in of the new curriculum (rendering the existing textbooks obsolete), and the tight timeline for and limited resources for national curriculum reforms.

20 The SESDP will support the MOES’ completion of the phase-in of the new LSE curriculum in SY2010/11–SY2011/12.

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phase-in of the new LSE curriculum nationwide, starting with the new grade 6 curriculum in SY2010/11 and the new grade 7 curriculum in SY2011/12.21 The change in scope also allowed the project to respond to the MOES’ request to add support for formulation of the revised upper secondary education (USE) curriculum (spanning grades 10–12), to support delivery by the MOES of a policy action included in the program’s third tranche.22 15. Similarly, the third subcomponent was initially envisaged to support development of an in-service teacher training program with two parts: (i) a subprogram to support teaching of the existing curriculum in all 17 provinces; and (ii) a more intensive but geographically limited subprogram to support the introduction of the new curriculum by training LSE teachers in six targeted provinces to use the new textbooks and teacher guides. To more effectively support nationwide curriculum reform, as part of the noted change of scope, ADB agreed to (i) eliminate the former subprogram (training linked to the existing textbooks) and instead focus on preparing teachers to deliver the new curriculum using new textbooks and teacher guides; and (ii) extend the teacher training program on the revised LSE curriculum to cover all 17 provinces.23 The project directly supported the training of 4,030 grade 6 teachers (including 1,834 women) and 4,215 grade 7 teachers (including 2,145 women), reaching more than half of all grade 6–7 teachers nationwide and considerably exceeding the original RRP target of 5,373 teachers, while supporting the MOE’s successful introduction of the new grade 6–7 textbooks and teacher guides into schools nationwide in SY2010/11 and SY2011/12.24 Post-testing conducted after both rounds pointed to significant rises in measures of ability to teach the new curriculum using more modern, student-centered pedagogy. 16. The fourth subcomponent provided packages of equipment, teaching materials, and learning resources to all 10 teacher training colleges as well as 28 new schools and 109 new classroom blocks constructed under output 1.25

c. Output 3: Strengthening Capacity for Education Management

17. Output 3 has three subcomponents: (i) strengthening the education management information system (EMIS), teacher management information system (TMIS), and financial management information system (FMIS); (ii) strengthening planning and budget preparation; and (iii) strengthening the central inventory system. 18. Support under the first subcomponent was originally envisaged to strengthen the EMIS by creating or expanding EMIS subsystems (in particular the TMIS and FMIS), building related capacity at all levels, and supporting improved data collection. In view of emergent DPO support and other developments after project design, support refocused on assisting the Education

21

The MOE adopted advice provided under the project to introduce new SES curricula using a cohort-based approach, under which the new LSE curriculum was phased in year by year during SY2010/11–SY2013/14 and the new USE curriculum will be phased in during SY2014/15–SY2016/17.

22 Subsequently, the ADB-supported SESDP assisted the MOES in developing new textbooks and teacher guides for all USE grades (10–12) and will support their introduction into schools during SY2014/15–SY2016/17.

23 The RRP also referred to support for pedagogical advisors in one activity in the project framework, but this is not otherwise covered in the RRP or design. It was agreed that is was ill-advised to launch a related stand-alone activity, given plans to provide more systematic support to pedagogical advisors under the SESDP.

24 During the 2 years, the program covered an estimated 8,070 distinct public school teachers (of which 48.2% were women), with additional participation by private school teachers on a self-financed basis. In each round, training-of-trainers covered more than 500 trainers, of which roughly one-third were women.

25 In view of emergent support for teacher-training college laboratory facilities under other projects, the originally envisaged procurement of teacher education institute laboratory equipment was cancelled, with priority given to computer labs and basic print and electronic materials to support pre-service training in the new curriculum.

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Statistics Center to develop and roll out an improved annual school census form (ASCF) as a data collection tool, to provide expanded, up-to-date, and accurate school data (including information related to school finances, as well as data for teachers and students disaggregated by gender and ethnic group) for integration into existing EMIS subsystems and to support evidence-based planning decisions. Related capacity building included training for (i) 78 trainers (including 23 women) in all 17 provinces on the use of the revised EMIS; (ii) 85 provincial trainers (18 of them women) on data collection, processing, and analysis; and (iii) nationwide training for 1,897 school heads (395 of them women) on ASCF data collection and basic analysis, in coordination with World Bank.26 The subcomponent also (i) provided computers to 51 district education bureaus (along with software-related training) to support improved data compilation and analysis; and (ii) supported improvements in statistics reporting in national and provincial education statistical yearbooks. Finally, overlapping this and other subcomponents, the project also supported the MOES’ development and approval of a teacher recruitment and deployment policy framework, a related action plan for 2010–2015, and supporting guidelines. 19. The second subcomponent supported the MOES Department of Finance in developing an outcome-oriented budgeting process and related tools, followed by preparation of an education sector MTEF, and pilot testing of the MTEF process in three provinces (Attapeu, Luang Namtha, and Savannakhet).27 As part of the pilot, the project provided complementary support for development of provincial planning aligned with budgeting, including capacity building on financial management techniques (accounting, reporting, and monitoring) aligned with new bottom-up budgeting tools. On the basis of pilot test results, the subcomponent supported (i) capacity development for all 14 remaining provinces on MTEF processes and preparation of provincial 3-year education sector planning; (ii) the MOES’ development of a national education sector MTEF for FY2011–FY2013; and (iii) the next year, preparation of an updated education sector MTEF covering FY2012–FY2014, which added school block grants for primary through USE levels.28 The MTEF provided the basis for the MOES’ budget proposal submissions to the Ministry of Finance (MOF) for the FY2011 and FY2012 budgets. More broadly, although MTEF-based proposals were not fully financed in the actual budget allocation (see also footnote 27), the education sector MTEF process appears to have contributed at least indirectly to education sector budget increases as well as the MOES’ introduction of school block grants for LSE and USE in SY2012/13, as part of a shift from top-down, incremental budgeting towards bottom-up budgeting based on student capitation and other measures used to project actual budget needs. It also provided a pioneering example for multiyear planning and MTEF development in other sectors, feeding into broader ADB-supported public finance reforms. 29 20. The final subcomponent supported the renovation and upgrading of the MOES’ central warehouse (used to store textbooks and other equipment and materials), as well as the design of a central system for strengthening monitoring of the government’s physical assets and

26

The latter included (a) 1,250 school heads (145 of them women) from virtually all secondary schools nationwide, and (b) 647 school heads (250 women) of incomplete primary schools in 18 selected districts. Selection of districts for primary school head training reflects coverage of other districts under other projects, including World Bank support.

27 Per policy area C.3 in the policy matrix, the education sector MTEF was intended to provide a rationalized basis for the MOES’ budget negotiation with the MOF. The MTEF process incorporates school financial information, numbers of students, and other data collected in the ASCF that was developed with support under output 3 (see para. 18).

28 Overall the subcomponent conducted 16 training workshops covering 50 central and 485 provincial staff.

29 See ADB. 2012. Report and Recommendation of the President to the Board of Directors: Proposed Programmatic Approach, Policy-Based Loan and Grant, and Grant Assistance to the Lao People’s Democratic Republic for Governance Capacity Development in Public Sector Management Program (Subprogram 1). Manila.

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property (including land and equipment). Linked to a policy action under the program loan, the subcomponent supported the MOES’ revision of the regulation on the management of MOES assets, which covers physical assets as well as the distribution and management of textbooks and learning materials.30 The BESDP also supported (i) the development of related software—a computerized asset management system, still in use—to help operationalize the regulation; and (ii) the provision of training workshops on using the system for central, provincial, and district education units, covering 115 central and local officials (including 29 women).

C. Program and Project Costs

21. For the program component, ADB provided a loan amounting to SDR6.008 million from its Special Funds resources, equivalent to $8.9 million equivalent at appraisal and $9.39 million at loan closing in June 2011 (due to SDR revaluation). 22. For the project, at appraisal, the total cost was estimated at $15.83 million, including expected ADB financing of $12.66 million and government counterpart funding of $3.17 million.31 By project completion, actual project costs totaled $15.86 million (very marginally above the estimated cost), of which ADB financed $12.64 million.32 The government-provided counterpart contribution (principally in-kind) is estimated at $3.22 million.33 Appendix 3 provides a detailed breakdown of project costs by category and financier at appraisal and at completion. 23. At project appraisal, $2.6 million was allocated to cover construction of 28 new secondary schools and 144 additional classrooms in 20 districts in 6 provinces. At project completion, actual costs totaled $3.85 million (a 46% increase), reflecting price escalation, depreciation of the US dollar, and the construction of one extra classroom in new schools (to accommodate the extension of LSE to four grades). The agreement to expand textbook printing and distribution as well as teacher training to be nationwide (see paras. 14–15) also resulted in increases in expenditures under budget lines for materials and training. Conversely, cost savings were realized in equipment and furniture (because the specifications prioritized simple, low-cost, and robust packages that could be easily used and maintained in schools), with a modest cost savings in consulting services. To accommodate actual project needs, a reallocation of grant proceeds was undertaken in February 2012, increasing the allocation to civil works (principally drawn from contingencies) and making minor adjustments to other cost categories as noted. The fact that the project scope and activities were implemented according to design (in some cases, exceeding targets) within the original project cost is noteworthy.

D. Disbursements

24. For the program loan, total disbursements at loan closing amounted to $9.39 million, disbursed in three tranches following the government’s fulfillment of required policy conditions. The first tranche, amounting to SDR2.025 million ($3.184 million equivalent), was released on 19 December 2007. The second tranche, programmed for release 24 months after disbursement of the first tranche, was disbursed in March 2010 for SDR2.025 million ($3.065 million equivalent). ADB approved an extension of the loan closing date to accommodate the 30

The Regulation also includes provisions for the use and rental of education facilities, which is potentially important for promoting potential public–private partnerships and new cost-recovery modes at the local level.

31 Of the total, $4.739 million was estimated as foreign currency and $11.095 million as local currency costs.

32 An amount of $20,983.45 was cancelled and refunded to ADB.

33 Estimated counterpart contribution was based on a combination of (i) reported figures for costs clearly linked to the project (e.g., land improvement prior to civil works); (ii) pro-rating assumptions for inputs partially related to the project, namely land valuation for the 28 new schools, and staffing and other recurrent costs for provincial and district education service units and central MOES management operations; and (iii) a government waiver of taxes.

8

release of the third tranche (originally scheduled for disbursement 12 months after the release of the second tranche), which was disbursed on 8 June 2011. 25. The grant was financially closed on 10 April 2014, with total disbursements amounting to $12.64 million (99.83% of the original grant amount). The executing agency efficiently processed liquidation of outstanding advances, starting 6 months before grant closing and completed in a timely manner within the winding-up period.34 26. The project’s imprest account supported implementation and was well managed. ADB provided an initial imprest account advance of $0.272 million to finance eligible project expenditures during the first 6 months, which included the procurement of equipment for the PMU. With the mobilization of project implementation consultants in March 2009, disbursement from the imprest account accelerated markedly. The advance was raised to $1.26 million and subsequently to $2.26 million in August 2010 to prevent cash flow problems and facilitate payment to suppliers and civil works contractors. E. Project Schedule35

27. Delays in establishing the PMU delayed the declaration of loan and grant effectiveness until 29 October 2007, roughly 10 months after project approval on 20 December 2006.36 These initial delays were compounded by delays in contracting the project implementation consultants, who were secured on 13 March 2009 (nearly 1.4 years after grant effectiveness), caused principally by issues related to corporate and withholding taxes levied on consultants. 37 However, following rapid fielding of the consultants on 22 March 2009, the project quickly gained momentum and largely recovered from the start-up delays. Notably, the project achieved completion of nearly all deliverables by the original completion date except the EDGP grant support to schools and the 4-year scholarships under the LSSGP (see para. 11). ADB approved a one-year extension to cover the final year of EDGP and LSSGP support. F. Implementation Arrangements

28. The MOES was the executing agency. The director general of the Department of Secondary Education (DSE) served as the project director of the PMU, which supervised overall project implementation, with the project implementation units (PIUs) and with guidance from a steering committee consisting of key officials from the MOES—including provincial education services and district education bureaus—as well as the MOF and the Ministry of Planning and Investment (MPI). Implementation arrangements have been adequate in the delivery of outputs and achievement of project purpose. 29. Following the midterm review, ADB approved a minor change in scope which included minor refinements of the design and monitoring framework (DMF). This principally (i) addressed identified inconsistencies between some DMF target indicators and the loan and grant agreements; (ii) realign the DMF with the restructured SES cycle (which extended LSE from three to four grades in SY2009/10; see also para. 10); and (iii) revised the provision of textbooks

34

The executing agency refunded to ADB the unutilized imprest account balance of about $21,000. 35

As noted in para. 24, for the program component, the loan closing date was extended to accommodate release of the third tranche on 8 June 2011.

36 ADB initially extended effectiveness through 31 August 2007, and then again through 30 November 2007. These delays resulted in a project performance report rating of unsatisfactory in September 2007.

37 The grant agreement assumed government financing of any taxes and duties. However, revisions in national taxation legislation necessitated intra-agency discussion, prior to agreement to waive taxes on the consultants.

9

and teacher training to support the introduction of the new curriculum nationwide (expanded from target districts). Late in the project, ADB approved a minor change in scope to respond to the MOES’ request for urgent project support to procure lumber and basic materials for one flood-damaged secondary school in Longsane, in Vientiane province. G. Conditions and Covenants

30. All project covenants (Appendix 4) have been fully complied with, except two covenants on the provision of the EDGP and the submission of annual audit statements, which were substantially complied with. For the EDGP, the grant agreement stipulates that support will be provided to 96 schools for 4 years. Owing to the start-up delays, the EDGP was launched in SY2009/10, with 94 schools receiving three cycles of support spanning 4 calendar years, while 2 schools forfeited one cycle because of delays in meeting liquidating requirements for the prior cycle. For project audits, in view of delays, ADB agreed to defer the first audit, allowing it to cover both FY2008 and FY2009, and the reporting period for FY2009 was extended to 23 months, covering the period from 30 October 2007 to 30 September 2009. H. Consultant Recruitment and Procurement

31. The original project design included 187.5 person-months of consulting services, expected to be composed of (i) 80.5 person-months of international and 104 person-months of national consultant inputs to be recruited by a firm using quality- and cost-based selection; and (ii) recruitment of an individual international exam reform specialist (3.0 person-months). The firm-based consultants were mobilized in March 2009 (roughly 16 months after grant effectiveness), following the resolution of tax issues (see para. 27). During implementation, modest adjustments expanded international consultant inputs to a total of 99 person-months—with national consultant inputs unchanged—while the total contract cost remained below the original estimates.38 The expected recruitment of the noted individual international exam reform specialist was canceled based on the MOES’ indication that in-house capacity and support provided by the firm-based consultants were adequate. ADB agreed to the PMU’s proposal to mobilize two international and one national consultants (1 person-month each) to conduct an independent evaluation as an input to the midterm review process. 32. All procurement activities were undertaken according to ADB’s Procurement Guidelines (2006, as amended from time to time), and consistent with approved procurement plans. Despite the start-up delays, the civil works, delivery of textbooks and other equipment, and other contracts were completed before the original project completion date. I. Performance of Consultants, Contractors, and Suppliers

33. Overall, the performance of consultants was highly satisfactory. In particular, the program and project benefited from the sustained and highly dedicated inputs of the team leader and core team members. The performance of contractors and suppliers was satisfactory. Completion of some civil works contracts was delayed, though this principally reflected the remoteness of many target sites (which posed particular challenges during rainy season), rather than negligence, and did not influence project costs.

38

Contract variations were financed within contract contingencies, and the firm provided an estimated 1.5 person-months of international consulting inputs on a pro bono basis.

10

J. Performance of the Borrower and the Executing Agency

34. The performance of the borrower and the MOES was highly satisfactory. The MOF demonstrated strong ownership of the BESDP and policy matrix throughout implementation, with strong support also from the Prime Minister’s Office, the MPI, and other key agencies. The BESDP faced modest start-up delays—caused principally by (i) delays in fully establishing and staffing the PMU amid ministerial restructuring; and (ii) issues regarding tax treatment under ADB grant-financed consultant contracts (a portfolio-wide issue)—but strong ownership by MOES leadership and concerted efforts by the DSE, the PMU, and implementing units enabled the program to catch up effectively, allowing for on-time completion of most core deliverables in accordance with the agreed action plans. In annual reviews of ADB’s portfolio, the MPI awarded the BESDP a certificate of merit for strong performance during each of the years 2010–2012. 35. The assessment of executing agency capabilities at appraisal was relatively accurate. Capacity development provided by the consultants was adequate. In addition to strong project management, the MOES’ strong commitment to inclusiveness—including equity across gender, ethnic group, and other dimensions—was a clear asset to achievement of targets. K. Performance of the Asian Development Bank

36. ADB’s supervision was satisfactory. ADB fielded 11 missions (from fact-finding through final review), and the MOES noted appreciation for the close dialogue, responsiveness, and flexibility throughout implementation, including the ADB team’s close engagement on policy, technical, and administrative aspects. In addition to design stage dialogue and the MOES’ strong ownership of the program, ADB’s role benefited from strong coordination between Headquarters and the Lao PDR Resident Mission, the latter’s solid front-line support, and the relative continuity of the ADB project team. Finally, the executing agency noted appreciation of ADB-provided training on project implementation and procurement.

III. EVALUATION OF PERFORMANCE

A. Relevance

37. Subject to internal review, the resident mission assessed that the program and the project were highly relevant at the design stage and throughout implementation, and the achievements and deliverables remain highly relevant to the government’s priorities for SES and the education sector. The government was highly appreciative of ADB’s assistance as the sole DPO providing concerted support to SES, recognizing the subsector’s critical role as a pivotal link positioned between primary education (which is supported by a large number of DPOs) and youth’s entry into higher education, technical and vocational education and training, and (for a larger number) directly into the workforce. 39 In addition to supporting the government’s delivery on targets set in the Education Sector Development Plan 2006–10, National Strategic Plan for Education Reform 2006–2015, and other key strategic documents approved prior to project approval, the comprehensive package of interventions in the BESDP’s complementary policy loan and investment project provided a key backbone for SES efforts set out in the Education Sector Development Framework (see para. 6). Mid-implementation refinements reflected in the November 2011 minor change in scope further sharpened the

39

In addition to focused support from Korea (see footnote 19), the Japan International Cooperation Agency is preparing to support construction of LSE schools in selected districts and provinces in the south of the country.

11

program and project components’ alignment and contribution to national objectives while responding to contextual shifts and allowing a full recovery from the modest start-up delays. B. Effectiveness in Achieving Outcome

38. Subject to internal review, the resident mission assessed that the BESDP was effective in achieving the intended outcome. The program supported an ambitious array of policy reforms, fully delivering on 22 of 24 specific targets reflected in the policy matrix (see para. 13 and Appendix 1). For the remaining two targets (related to education sector budgeting, defined inclusive of ODA), significant increases in government financing would have been sufficient to meet the targets in the absence of a dramatic reversal (decline) in ODA (see para. 7). 39. The program and project collectively supported the achievement of six specific outcome targets in the DMF.40 Namely, between the baseline year SY2004/05 and the end-line year SY 2011/12: (i) the national gross enrollment ratio (GER) for LSE rose from 54.0% to 64.6%; (ii) the female share in new admissions to LSE rose from 44.1% to 46.5%; (iii) the number of LSE graduates rose from 58,200 to 69,219; and (iv) the transition rate from primary grade 5 to LSE grade 6 rose from 77.7% to 85.7% overall, from 75.9% to 84.3% for girls, and from 79.3 to 87.0% for boys. Despite progress, the target of reducing the LSE dropout rate to 8.5% was missed, with the rate falling from 12% in SY2004/05 to 10.4% in SY2011/12 (and 8.5% the following year).41 In retrospect, the original DMF target appears not to have accounted for the fact that the extension of LSE by one grade (in SY2009/10) would have an automatic effect on education statistics, including increasing dropout rates and depressing the GER for LSE.42 40. Although the outcome targets were national in scope, a review of available data for the 20 disadvantaged districts covered by the BESDP’s geographically targeted interventions under output 1 suggests generally more rapid progress, narrowing the gap with national figures. While reflecting multiple factors, the BESDP’s support for new schools and classrooms, LSSGP stipends, and EDGP grants appears to have promoted such gains. Likewise, although the DMF outcome targets principally capture access, the final review noted that the program and project had made clear contributions to improved quality of LSE, with important implications for USE and beyond. Perhaps most important, as noted in para. 13, the BESDP supported the Lao PDR’s formulation and launch of SES curriculum reforms that extended (in SY2009/10) LSE to 4 years, as well as the first two years of the phase-in of new textbooks, with improved pedagogy supported by two rounds of nationwide teacher training and new teacher guides. Pre- and post-tests linked to teacher training rounds pointed to improved teacher capacity, while rising scores on the national LSE completion exam appear at least partially attributable to the BESDP’s support.43 In particular, the BESDP appears to have improved learning outcomes nationwide through better teaching practice, curricular contents and materials (textbooks and teacher guides), and (in targeted districts) teaching and learning facilities.44

40

Per para. 29, minor refinements to the DMF were agreed at the midterm review (including to address inconsistencies with the loan and grant agreements), but they would not affect the ratings proposed herein.

41 Owing to the delayed release of data from the 2012/13 Lao Expenditure and Consumption Survey, it is not possible to make a definitive assessment for the outcome indicator on the share of children predicted to complete LSE.

42 As noted above, the LSE dropout rate has continued to fall, while the LSE GER has continued to rise, reaching 69.1% in SY2012/13 (65.3 % for girls and 72.6 % for boys).

43 The share of grade 9 students scoring satisfactory marks in each of five subjects in the LSE completion exam rose from about 36% in SY2011/12 and prior years to 63% in SY2013/14, particularly due to rises in science and math scores. This improvement also likely reflects other factors, including the SESDP’s follow-on support.

44 This assertion is also supported by site visits and discussions at various levels: e.g., teachers have voiced strong appreciation of the nationwide training rounds (and also improved textbooks and teacher guides), which helped them master the revised subject content and adopt modern, learner-centered pedagogical methods.

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C. Efficiency in Achieving Outcome and Outputs

41. Subject to internal review, the resident mission assessed that the BESDP’s support for policy reforms and project investments was highly efficient, particularly if viewed in terms of the deliverables and benefits delivered within the program’s very modest resources: as noted in paras. 9–20, several key outcome and output targets were significantly exceeded, perhaps more important in terms of quality.45 Given evidence that quality had posed a key challenge to completion (particularly in poor areas) of LSE (and USE) as well as SES graduates’ preparedness for the workplace and the Lao PDR’s rapidly evolving socioeconomic context, the central focus on supporting national SES curriculum reform, nationwide teacher training and distribution of LSE textbooks and teacher guides, was highly appropriate and will pay long-term dividends (see also paras. 4 and 13), as evidenced by rising test scores (see para. 40). Approaches to improving access (e.g., school and classroom construction designs and equipment provided, student stipends, and EDGP grants) were cost-effective and well-targeted at key constraints, which were appropriately identified in the problem tree and design. In general, support under the policy program and investment project components, and across the three outputs was well linked, providing a critical mass of support and allowing for complementarity across efforts to promote education access, quality, and subsector management. 42. Following the initial start-up delays (see para. 27), strong project management by the MOES ensured a high degree of process efficiency. The latter (as well as the overall ADB-government dialogue) also benefited from the BESDP’s positioning as the only concerted DPO support for SES (principally LSE). This also allowed the BESDP to complement and enhance the impacts of other DPOs’ investments in primary and pre-primary education.46 D. Preliminary Assessment of Sustainability

43. Subject to internal review, the resident mission assessed that investments and reform achievements supported under the program component are most likely sustainable, as reflected in continued post-project increases in indicators tracked in the DMF. The MOES and the government continue to place more emphasis on the education sector and exhibit strong ownership of policy reforms supported under the program loan. Adequate budgeting will remain critical to the longer-term sustainability of gains achieved; however, recent budget increases (if maintained) are ample to sustain the BESDP’s benefits. During FY2010–FY2014, the total education budget nearly tripled (rising at a geometric average rate of 30.3% per year).47 This increase has been driven principally by increasing recurrent expenditures, including a near quadrupling of the non-wage recurrent budget—particularly key to sustaining quality improvements, ranging from facility maintenance to training and deployment of qualified teachers—which rose at a geometric average rate of 37.8% per year during this period.48 It is also noteworthy that rapid rises in government financing of the education sector have decreased reliance on ODA, with the share of ODA in education financing declining from 59.4% in FY2005 to 17.4% in FY2014. With the country’s entry into the Association of Southeast Asian Nations (ASEAN) Economic Community, the target of escaping LDC status (see para. 4), and other

45

Consistent with standard practices by ADB, the World Bank, and other DPOs, economic or financial internal rate of return analysis is not generally appropriate to analysis of secondary education and was not conducted during appraisal or final review.

46 Expanding access and improving LSE quality and management plays a critical role in ensuring that rising numbers of primary school graduates can continue their education and eventual entry into the workforce.

47 Figures herein are based on annual data published in the Official Gazette of the Lao PDR National Assembly.

48 The budget for wages and allowances rose by a similar margin during this period, owing principally to a rise in teacher salary rates in FY2013. Education investment budgets rose by a geometric average of 13.6% per year.

13

shifts, the government’s emphasis on the education sector and SES is expected to continue to rise.49 The ADB-supported SESDP (which incorporates lessons from the BESDP) has exhibited strong progress in providing seamless, sustained support to the government’s SES reform agenda.50 The BESDP’s sustainability also benefits from a focus on cost-effective approaches (particularly minimizing additional recurrent cost burdens).51 In terms of institutional capacity, rather than relying solely on the PMU and consultants, the BESDP engaged MOES units as implementing units for key interventions and provided capacity building that will help ensure post-project sustainability. E. Impact

44. While it is impossible to precisely quantify the program’s role, the BESDP has clearly made important contributions to the targeted impact of higher and more equitable educational attainment among the adult population. 52 As noted in para. 39, the GER and number of graduates from LSE increased (despite the addition of a fourth grade of LSE), and as a follow-on effect, EMIS data also point to increased enrollment in USE.53 The development literature suggests that LSE is often a minimum prerequisite to enable a youth to function in modern urban or rural sectors and participate in new economic opportunities brought by growth.54 Improvements in LSE educational attainment and quality and relevance are likely to be particularly critical for spurring poverty reduction and inclusive growth amid the Lao PDR’s socioeconomic transformation and impending entry into the ASEAN Economic Community. Other important dimensions of impact include institutional strengthening in bottom-up budgeting and evidence-based planning, decentralization and community engagement in school management, and strengthened capacity to develop and update national curricula. The BESDP’s Gender and Ethnic Group Development Plan (GEGDP) was carefully implemented, resulting in positive impacts on ethnic groups (as well as girls and women; see paras. 45–46) prioritized for participation in various initiatives (e.g., student scholarships, teacher training). The BESDP involved no resettlement and had no significant environmental impacts. 45. Gender Analysis and Project Design Features. As detailed in Appendix 5, the BESDP’s design emphasized gender and other dimensions of equity, reflected in the GEGDP actions and targets. Spanning all three outputs, these included (i) requiring construction of separate toilets for girls and boys in civil works packages; (ii) reserving at least half of LSSGP scholarships for girls; (iii) establishing SPAs with at least 40% female membership to support school management and oversee the EDGP; (iv) ensuring gender and ethnic group sensitivity in the formulation of the new curriculum, training materials, etc.; (v) tracking gender and ethnicity in teacher training records; (vi) ensuring gender disaggregation in school data collection and the

49

The government has committed to increasing education’s share of the total national budget to 18.0% by FY2016, as required in the Education Law (revised in 2007). From a political standpoint, it is noteworthy that the MOES minister was recently appointed concurrently as vice prime minister of the country.

50 Reflecting this, the SESDP achieved a rapid start-up and has maintained strong financial and substantive performance (e.g., supporting the MOES’ successful completion of the phase-in of the new LSE curriculum in SY2013/14). The SESDP was ranked the top project in the 2013 ADB portfolio review by the MPI and ADB.

51 For example, school design features used are estimated to reduce annual maintenance costs by at least 10%.

52 Census and survey data needed to assess the DMF’s two specified impact indicators are not yet available. ADB will assist the MOES in conducting an initial analysis of related variables when the household dataset for the 2012/13 Lao Expenditure and Consumption Survey (LECS) is released.

53 USE enrollment rose by nearly 8% in each of the last two school years, with the share of girls rising from 47.9% to 48.4% from SY2011/12 to SY2013/14. This is believed to be explained at least partly by improvements in LSE curriculum, teaching, and learning outcomes.

54 See C. Spohr. 2003. “Formal Schooling and Workforce Participation in a Rapidly Developing Economy: Evidence from ‘Compulsory’ Junior High School in [Taipei,China]”. Journal of Development Economics, Vol. 70/2, and evidence cited therein.

14

national EMIS; and (vii) providing equal opportunities for female staff to participate in training and workshops to strengthen education planning and budgeting. 46. Assessment of Gender Equity Results. The GEGDP was carefully implemented and monitored, including reporting of disaggregated data as part of biannual ADB review missions (supported by the gender focal point at the Lao PDR Resident Mission). Achievement of GEGDP targets ensured strong female participation in project processes and access to benefits from interventions project-wide. For example, under output 1, construction of all schools and additional classroom blocks at all 68 targeted schools included provision for separate toilets for girls and boys, with functioning water supplies. Girls made up 51% of LSSGP scholarship recipients (with ethnic groups accounting for a 79% share). As an unintended positive impact of the project, monitoring visits frequently demonstrated that many of these disadvantaged girls and boys stood out as high performers in their schools. Beyond meeting the GEGDP requirement for SPA constitution, female participation in EGDP implementation provided a stronger basis for female involvement in school improvement, particularly in ethnic communities. Under output 2, the newly developed LSE curriculum, textbooks, and teacher guides incorporated stronger gender sensitivity.55 The latter was also explicitly reinforced during the two BESDP-supported nationwide training rounds. Under output 3, the new ASCF (see para. 18) provides a stronger basis for gender and ethnic group data to influence national policy and programs (in addition to populating EMIS databases), while prioritization and tracking of female participation in trainings under this and other outputs ensured equitable participation.

IV. OVERALL ASSESSMENT AND RECOMMENDATIONS

A. Overall Assessment

47. Subject to internal review, the resident mission rated the project overall as highly successful. Both program and project components were implemented as originally designed, with minor refinements mid-implementation responding effectively to contextual shifts and supporting recovery from modest start-up delays. The BESDP achieved intended outcomes and outputs (in many cases exceeding targets) within budget and with nearly all intended core initiatives completed by the original completion dates. B. Lessons

48. Sector development program modality. The BESDP demonstrated the efficacy of the sector development program (SDP) modality in providing complementary policy and implementation support, if well designed and supported. However, in future SDPs, it will be important to link program and project components more explicitly (e.g., identifying how the project will support achievement of policy actions) to maximize efficacy, while ensuring close alignment in the content of the RRP and the DMF.56 It will also be important to correctly balance comprehensiveness with feasibility, ensuring a critical mass of interventions while avoiding excess complexity or spreading resources too thinly.57

55

A quality matrix for checking the draft curriculum (including gender and ethnic group issues) prepared by the consultants was adopted by the MOES in August 2009.

56 For example, the RRP used different output statements for the program and project, while targets for classroom construction and gross enrollment rates failed to account for the dynamic effects of program-supported reforms to extend LSE to 4 years, and the DMF, main text, and consultant terms of reference showed minor inconsistencies.

57 For example, while the BESDP design focused principally on curriculum and textbook development and in-service training, the SESDP will also provide support to strengthen pre-service teacher training and the role of local pedagogical advisors and school inspectors in supporting a shift towards student-centered learning.

15

49. Maintained strategic dialogue. The original project design’s alignment with the government’s objectives benefited from strong dialogue during the design phase, as well as from ADB’s prior engagement in the country’s education sector. Implementation also benefited from continuous close dialogue between the executing agency, consultants, and ADB (including on policy and technical dimensions), which allowed for recovery from initial delays and timely and flexible responses to emerging issues.58 It also enabled ADB to share relevant regional experiences, tapping its role as a leading DPO supporting SES reforms in the region. Strong support and cooperation from the resident mission played an important role, as did the relative continuity in ADB, the PMU, and consultant teams throughout implementation.59 50. Engaging MOES units. The approach of engaging multiple MOES units as focal points for implementing particular interventions posed some challenges but proved advantageous on balance, enhancing ownership and building capacities to sustain benefits post-project. In addition to close coordination, careful specification of responsibilities and division of labor, clear unit and individual accountability, and sustained monitoring are critical in such a model. C. Recommendations

51. Future monitoring. The MOES should continue to monitor BESDP interventions, ranging from implementation of new policies supported under the program to periodic monitoring of maintenance and use of new facilities and equipment provided under the project. For future projects, it is important to establish monitoring systems early during implementation and ensure designation of executing agency staff at central and local levels for monitoring key dimensions, including gender action plans (see paras. 46 and 50). The design for the follow-on SESDP provides an larger budget and emphasizes monitoring and evaluation at different levels, including financing and capacity-building support for central and local actors. Finally, ADB will support the MOES in analyzing the 2012/13 Lao Expenditure and Consumption Survey household dataset, to provide an updated and in-depth understanding of education access and attainment and a stronger basis for evidence-based planning. 52. Covenants. Although the covenants were generally very appropriate (supporting compliance), in a few cases the wording could have been more flexible to allow a clearer focus on the core intent while avoiding restrictive details.60 53. Additional assistance. The SESDP’s design closely dovetails to the BESDP and generally incorporates the lessons and recommendations here. Although the SESDP has made rapid progress, the MOES and ADB should maintain careful monitoring to ensure that it effectively supports the ministry’s completion of critical SES reforms begun with program support. At the same time, ADB and the government should initiate a dialogue on potential support beyond the end of the SESDP in 2018, recognizing that universalizing access to high-quality SES will become increasingly important to the Lao PDR’s socioeconomic transformation.

58

As a lesson for future projects, close and detailed dialogue during the design phase also helped support appropriate cost estimates, supporting the project’s delivery of targets within the budget. At the same time, mid-implementation dialogue allowed for effective reallocation of funds to meet shifting needs (see para. 23).

59 Continuous engagement by ADB staff from Headquarters and the resident mission also supported effective dialogue, allowing optimal dovetailing of the BESDP with the follow-on SESDP.

60 For example (see para. 30), the specification of numbers of schools and years covered by the EDGP arguably goes beyond the covenant’s core intent but resulted in the covenant being recorded as substantially complied with.

16 Appendix 1

STATUS OF COMPLIANCE WITH BESDP TRANCHE CONDITIONS Table A1.1. Tranche 1 (Effectiveness)

Condition Progress

Condition 1: The Ministry of Education (MOE) shall have approved regulations and revised manuals to strengthen the role and responsibilities of PES and DEB in relation to decisions about changes to the primary school network (including new schools, school closures, change in school status, e.g., multigrade schools offering 5 primary grades etc.)

Complied with. The Ministry of Education and Sports (MOES) provided to the Asian Development Bank (ADB) on 3 September 2007 related documents, including an English translation of the decree on Improving the Role and Right of City Education Services, Provincial Education Services, and

District Education Bureaus. 61

Condition 2: MOE shall have issued guidelines for the management and use of education development funds allocated to schools. MOE shall have identified criteria and issued guidelines for selection of scholarship recipients.

Complied with. The MOES provided to ADB on 3 September 2007 related documents, including an English translation of a joint Guidelines for Management and Use of Education Development Funds Allocated to Schools, and Criteria and Guidelines for Selection of BESDP Scholarships.

Table A1.2. Tranche 2

Condition Progress

Condition 1 (3 targets): (a) The Borrower shall have caused the Ministry of Finance (MOF) to

(i) allocate 15.5% of the total budget for 2008–2009 to the Ministry of Education (MOE), provided that the allocated education budget shall not have been less than the share or the volume, whichever is greater, of the budget allocation stipulated in the preceding year; and

(ii) disburse 80% of the MOE recurrent budget for 2008–2009; and

(b) the share of the recurrent expenditures shall have reached at least 45% of the total education budget for 2008–2009

Substantially complied with. The MOF reported to ADB that, including an additional allocation for newly added teachers, the share of the budget allocated to education for FY2009 was 15.4%.

The MOE Department of Finance confirmed that the MOE has disbursed 90.6% of the central recurrent budget for FY2009, with a corresponding share of 105.4% for provincial recurrent budget disbursements.

The MOF reported to ADB that recurrent expenditures constituted 57.0% of the education budget for FY2009.

Condition 2: In support of the Borrower's Teacher education Strategy and Action Plan (2006–2015), the Borrower shall have caused MOE to prepare and submit to the Prime Minister's Office (PMO) for approval a Teacher Recruitment and Deployment Policy Framework, action plan and supporting guidelines for the management, recruitment, deployment and career

Complied with. The MOE Department of Personnel developed and submitted to the Prime Minister's Office the teacher recruitment and deployment policy framework, action plan for 2010–2015, and supporting guidelines.

a

61

The MOES was restructured from the former Ministry of Education mid-implementation. For simplicity, the current name is used throughout the right column of this appendix, while the left column retains the original text from the Loan Agreement.

Appendix 1 17

Condition Progress

development of teachers.

Condition 3: The Borrower shall have caused MOE to develop a strategy, relevant incentives and an action plan for facilitating participation by the private sector, including public trusts, private entities and charitable institutions, in the provision of school education.

Complied with. The MOE Department of Private Education Management developed and submitted to the Prime Minister’s Office in December 2009 the strategy document on facilitating private sector participation in school education, which incorporates analysis of incentives and includes a detailed action plan for 2010–2015. The strategy document provides guidelines for government promotion of various models of public–private partnerships, which may be useful as a reference within and beyond the education sector.

Condition 4 (3 targets): The Borrower shall have (i) caused MOE to approve revised curricula for

primary education (Years 1 to 5) and lower-secondary education (Years 6 to 9);

(ii) approved the revised lower secondary

curriculum (Years 6 to 9); and

(iii) caused MOE to develop a revised upper secondary curriculum (Years 10 to 12), taking into consideration the revised curricula for Years 1 to 9.

Complied with. The MOE approved the revised curricula for primary education in July 2007 (Decree 528) and for lower secondary education (LSE) in October 2009 (Decree 1007). The MOE subsequently printed and distributed new textbooks based on the revised primary education curriculum.

In July 2007, the government approved the revised Law of Education, restructuring the LSE curriculum from 3 to 4 years and outlining core curricular areas. The law authorizes the MOE to approve detailed curricula for all grades, levels, and forms of education. The BESDP is supporting the development, design, production, and distribution of LSE textbooks and teacher guides based on this revised curriculum (condition 5).

The Research Institute for Education Sciences under the MOE developed a revised curriculum for upper secondary education and submitted it to the vice-minister of education in November 2009.

Condition 5: The Borrower shall have caused the MOE to approve the use of new lower secondary education textbooks and teachers' guides.

Complied with. The MOE vice-minister (on behalf of the minister of education) signed Decree No. 1158 on 17 November 2009, approving the use of new textbooks and teacher guides, which will serve as the main resources for teaching and learning activities under the reformed LSE curriculum.

Condition 6: The Borrower shall have caused MOE to issue guidelines for standardizing data collection, processing and analysis.

Complied with. The MOE developed guidelines for standardizing data collection, processing, and analysis, and issued them to offices at all levels (from the central government to school heads) via Directive No. 1248 (signed by the vice-minister on behalf of the minister) on 21 December 2009.

Condition 7: The Borrower shall have caused MOE to pilot the new financial management system (FMS), which incorporates budget

Complied with. The FMIS has been piloted in the three target provinces (Attapeu, Luang Namtha, and

18 Appendix 1

Condition Progress

preparation and submission at provincial level, in three target Project provinces to be agreed between the Borrower and ADB.

Savannakhet), and the provincial education authorities have prepared and submitted budgets for FY2011 to the provincial government for consideration in the next budget cycle.

Condition 8: The Borrower shall have caused MOE to issue a directive requiring provincial education service (PES) authorities to prepare provincial plans based on the school mapping carried out pursuant to the Education For All (EFA) Plan and aligned with the new budget format and processes.

Complied with. Following the issuance of a required provincial plan format on 24 November 2009, the MOE issued on 7 December 2009 Directive 2535 requiring the PES to submit provincial plans for the next 5-year planning period (2011–2015).

b

Condition 9: The Borrower shall have caused MOE to initiate development of a medium term expenditure framework (MTEF) for the education sector.

Complied with. The MOE has initiated the development of an MTEF for the education sector, as reflected in the formal designation on 19 November 2009 of the MOE's representative to the cross-sector technical working group on MTEF formulation for various sectors. This is consistent with protocols for the development of a government-wide MTEF under ADB technical assistance on Strengthening Public Financial Management.

c

In parallel with support linked to condition 8, the BESDP supported the three pilot provinces in developing medium-term provincial education plans.

Condition 10: The Borrower shall have caused MOE to revise the current regulation on the management of MOE assets (Decision No. 66, 28 January 2004) to ensure effective management of such assets.

Complied with. The MOE issued Decree 115 (dated 16 November 2009), which revises the regulation on the management of MOE assets.

a For brevity, alignment with stipulations under the gender and ethnic group development plan that relate to this and

other policy conditions is not discussed herein but is noted in Appendix 5. b The directive also requires other departments and institutions under the MOE to submit corresponding plans.

c ADB. 2008. Technical Assistance to the Lao People’s Democratic Republic for Strengthening Public Financial

Management. Manila (TA 7077-LAO). Source: Asian Development Bank.

Table A1.3. Tranche 3

Condition Progress

Condition 1 (3 targets): (a) The Borrower shall have caused the Ministry of Finance (MOF) to

(i) allocate 16 percent of the total budget for 2009–2010 to MOE, provided that the allocated education budget shall not have been less than the share or the volume, whichever is greater, of the budget allocation stipulated in the preceding year; and

(ii) disburse 85 percent of the MOE recurrent budget for 2009–2010; and

Substantially complied with. The MOF, in a 22 March 2011 letter signed by the minister, reported to ADB that the share of the budget allocated to education for FY2010 was 15.5%.

Figures from the MOF and the MOE Department of Finance confirm that the MOE has disbursed 91.8% of the recurrent budget for FY2010 (along with 96.7% of the investment budget).

Appendix 1 19

Condition Progress

(b) the share of the recurrent expenditures shall have reached at least 50 percent of the total education budget for 2008–2009.

The MOF has reported to ADB that recurrent expenditures constituted 53.2% of the education budget for FY2010.

Condition 2: The Borrower shall have caused the Prime Minister’s Office to approve the Teacher Recruitment and Deployment Policy Framework, action plan and supporting guidelines for the management, recruitment, deployment and career development of teachers.

Complied with. The Prime Minister's Office approved on 9 September 2010 (Decree of the Prime Minister #389) the Teacher Development and Management Policy Framework and action plan for 2010–2015. On 16 March 2011, the MOE minister issued a directive (Directive of the Ministry of Education #182) that related interim guidelines be used by provincial education offices and teacher education institutions in implementing the Teacher Development and Management Policy Framework and action plan.

a

Condition 3: The Borrower shall have caused the Prime Minister’s Office to approve the strategy, relevant incentives and the action plan for facilitating participation by the private sector, including public trusts, private entities and charitable institutions, in the provision of school education.

Complied with. The Prime Minister’s Office approved on 29 March 2011 (Decree of the Prime Minister #113) the Private Education Promotion Strategy, 2010–2020, which incorporates analysis of incentives and a detailed action plan for 2010–2015. The strategy also includes nongovernment and civil society organizations, and other nonprofit organizations.

Condition 4: The Borrower shall have caused MOE to approve a revised upper secondary education curriculum (Years 10 to 12).

Complied with. The MOE approved the revised upper secondary education curriculum in February 2011 (Agreement of the Ministry of Education #325).

a

Condition 5: The Borrower shall have caused MOE to adopt the new financial management system (FMS) for implementation at the national level.

Complied with. As part of broader reforms to develop and introduce an education sector medium-term expenditure framework (MTEF; see below), the MOE approved on 29 March 2010 (Agreement of the Ministry of Education #263) the use of the Planning and Budgeting Manual, including its detailed budgeting submanual. The submanual embodies the new FMIS, which is a methodology for quarterly, annual, and 3-year budgeting, based on the use of better budget formats and processes developed with support from the BESDP. An attached MOE directive (Directive of the Ministry of Education #265) assigns relevant departments to provide training and other support implementation nationwide, starting in FY2012.

a

Condition 6: The Borrower shall have caused MOE to develop a medium term expenditure framework (MTEF) for the education sector.

Complied with. Following successful pilot testing in three program-supported provinces, the MOE formally endorsed on 29 March 2011 (Agreement of the Ministry of Education #864) a national Education Sector MTEF, 2010–2013. This will guide the MOE’s budget submission for the FY2012 budget.

20 Appendix 1

Condition Progress

More broadly, the MOE’s development of an education sector MTEF marks a pioneering achievement in efforts to develop MTEFs for each sector and the overall government.

a In parallel to the stated policy conditions for tranche release reported herein, ethnic group and gender dimensions

related to policy conditions 2, 4, and 5 that are defined in the program’s gender and ethnic group development plan have been addressed. See also Appendix 5. Source: Asian Development Bank.

Appendix 2 21

PROGRAM DESIGN AND MONITORING FRAMEWORK TARGETS AND RESULTS1

Design Summary

Performance

Targets/Indicators

Assumptions and

Risks End-line Results/Status

Impact

Increased and more

equitable educational

attainment among

the adult

population

Improved declared adult literacy rates from 73% (2005) to 87% (2015), with that for ethnic group women rising from 41% (2005) to 55% (2015)

Improved tested adult literacy rates, from 44.8% (2005) to 55% (2015) for overall population, and among the poorest 20% of the population from 30% (2005) to 45% (2015)

Assumptions

Education, particularly basic education, is accorded high priority.

The National Growth and

Poverty Eradication Strategy remains a priority for economic and social development. Risk

Government’s inability to match goals with adequate resources

As an interim estimate, the declared literacy rate was 86% in 2011.

Data not yet available

Outcome

Expanded and

equitable access to

better-quality

and more efficient

lower

secondary education (LSE)

Increased gross enrollment rate in LSE from 54% in SY2004/05 to 61.7% in SY2011/12

Increased female share in admissions to LSE from 44% in SY2004/05 to 46% in SY2011/12

Increased annual output of LSE graduates from 58,200 in SY2004/05 to 64,600 in SY2011/12

• Increase in transition rate from

grades 5 to 6 from 78.0% in SY2004/05 to 85.0% in SY2011/12 (82.0% for females and 87.0% for males)

• Increased share of children

predicted to complete LSE from 40% in SY2004/05 to 52% in SY2011/12

• Average LSE dropout rate

reduced from 12% in SY2004/05 to 8.5% in SY2011/12

Assumptions

The MOE will have issued necessary guidelines to empower the regional and district education offices.

Parliament will approve necessary modifications to add a fourth year to LSE.

Government commitment to education reform remains strong.

Recurrent costs are rationalized gradually. Risks

Government commitment to decentralizing education management falters

Government delays restructuring the school system

Resource constraints hinder improving recurrent cost ratios.

Surpassed: gross enrollment rate

in LSE was 64.6% in SY2011/12

Surpassed: female share in

admissions to LSE was 46.5% in SY2011/12

Surpassed: annual output of LSE

graduates was 69,219 in SY2011/12

Met (all three targets): transition

rate from grades 5 to 6 was 85.7% in SY2011/12 overall (84.3% for females and 87.0% for males)

Data not available to definitively assess, pending release of 2012/13 Lao Expenditure and Consumption Survey data.

• Not met: LSE dropout rate was

10.4% in SY2011/12, though continuing to fall (8.5% in SY2012/13)

1. Outputs

1. Expanded and

equitable access to

LSE provided in fast-

growing, high-demand

urban areas and in

poorest rural and

Education share of national budget increases to 15.5% in 2009 and 16% in 2010

Share of recurrent

Assumptions

Government commitment to education is strong.

Risk

Government does not meet its commitment for resource

Not met: Education share of

national budget was 15.4% in FY2009 and 15.5% in FY2010 (and 15.5% in FY2013/14)

Surpassed: Share of recurrent

22 Appendix 2

remote areas

2. Improved relevance and quality of LSE

3. Improved capacity

for planning,

budgeting,

management, and

delivery of education

expenditures for education increases to 45% in 2009 and 50% in 2010

Disbursement rate for education budget is 80% for 2009 and 85% for 2010

Provision of 28 new LSE schools, 144 LSE classrooms in existing LSE schools, in the 20 targeted districts of BESDP provinces

1,638 scholarships for ethnic and poorest pupils, including at least 50% girls, received and completed

Revised integrated curriculum framework for grades 1–12 (primary education completed by 2008 and upper secondary curriculum drafted by end of project)

Curriculum revised and student learning outcomes developed for LSE by 2009

Teacher recruitment and deployment framework and action plan

In-service training of 7,000 year 1–2 lower secondary teachers nationwide completed and posttest shows adequate teaching skills

By 2011, 10 teacher training colleges, 28 new lower secondary schools, and 109 other lower secondary schools receive a package of equipment, teaching material, and learning resources

School management committees are established in 96 schools receiving education development grants; to the extent possible, they will have 40% female members, and at least one female and one male student

allocation

Assumptions

Government has empowered

the provincial and district

education authorities to take

decisions regarding school

networks (opening, closing,

expansion, rehabilitation, etc.

of schools)

Location of LSE schools to be

constructed or expanded is

according to provincial school

mapping and is based on GIS

maps, and PES-DEB

proposals

Quota of LSE teachers

allocated provincially is based

on school mapping: all new

classrooms are allocated

teachers.

Risks

The selection criteria are not

strictly followed in

construction or expansion of

new facilities

Adequate number of teachers

not deployed to new facilities

Assumptions

Committee for approving

curriculum, instructional

materials and evaluation of

general education is

functioning

Parliament modifies the law to

add a fourth year to LSE

Risks

Committee for approving

curriculum, instructional

materials, and evaluation of

general education does not

act in a timely manner

Government delays the

restructuring of the school

system

Assumptions

The MOE will have issued a

directive to the PES to report

budget and expenditure in the

expenditures for education was 57.0% in FY2009 and 53.2% in FY2010

Surpassed: Disbursement rate

for education budget was 89.6% (including 90.8% for recurrent budget) in FY2009 and 93.8% (including 91.8% for recurrent budget) for FY2010

Met: Constructed and equipped

28 new LSE schools and 144 LSE classrooms in existing LSE schools in the 20 targeted districts

Substantially met: 1,638

scholarships for ethnic and poorest pupils, with 1,556 scholars completing LSE (including 51% girls)

Surpassed: revised integrated

curriculum framework for grades 1–12 education completed in 2008, and new upper secondary curriculum approved by the MOES in 2011

Surpassed: LSE curriculum

revised and student learning outcomes developed by 2009, and introduced nationwide in SY2010/11

Met: Teacher recruitment and

deployment framework and action plan developed in 2009

Surpassed: In-service training of

8,070 year 1–2 lower secondary teachers nationwide completed, with results confirmed by posttest

Met: equipment and teaching and

learning resource packages provided to 10 teacher training colleges, 28 new lower secondary schools, and 109 other lower secondary schools by 2010

Met: school management

committees established in 96 schools receiving education development grants, and

Appendix 2 23

representative

Annual and medium-term LSE planning and budgeting/ expenditure formats piloted in at least three provinces

Planning and budgeting process in PES aligned with school mapping approach, teacher allocation and deployment process, and official development assistance planned interventions

Improved accounting, reporting, and monitoring of expenditure

Improved outcome- oriented budget format and process

More informed decision- making process regarding MOE budget negotiations with the Ministry of Finance (MTEF)

Improved assessment and monitoring of MOE physical assets

Staff training to support all of the above

modified format (linked to the

MOE review of PES manual

of work and procedure).

The MOE will have officially

approved the outcome-

oriented budget format and

process piloted in the three

provinces.

The MOE will have revised

the current regulation on the

management of MOE assets.

Risks

Delays in issuance of relevant

guidelines

Delays in approval of new

processes and procedures

maintained 40% female membership, with at least one female and one male student representative

Surpassed: annual and medium-

term LSE planning and budgeting/ expenditure formats piloted in at least three provinces, and then extended via training to all other provinces

Met: Planning and budgeting

process in PES aligned with school census and data collection, teacher allocation and deployment process, and planned official development assistance

Met: accounting, reporting, and

monitoring of expenditure improved based on bottom-up, needs-based approach developed through MTEF support

Met: improved budget format and

process introduced through MTEF

Met: MTEF introduced a more

informed decision-making process regarding MOE budget negotiations with the Ministry of Finance

Met: central asset management

system introduced to improve assessment and monitoring of physical assets

Met: extensive staff training to

support all of the above (see main text)

Activities with Milestones

1. Expand and ensure equitable access to better-quality LSE

1.1 Increase budgetary allocation to education, disbursement rate for

education budget, and rationalization of recurrent and capital

expenditures

1.2 Provide 28 new schools and 144 additional classrooms in the 20

targeted districts

1.3 Provide education development grants to 96 schools in target districts

1.4 Establish 96 school management committees

1.5 Provide 1,638 scholarships to ethnic students (at least 50% girls) from poor villages in target districts

1.6 Conduct baseline study on factors inhibiting participation and retention in primary education and LSE schools to explore alternative modes of subsidy and type of incentives

1.7 Conduct a midterm evaluation study to assess emerging impact and identify needed refinements

Inputs (indicative figures in original RRP)

• First tranche budget support: $3.0 million by

December 2007

• Second tranche budget support: $3.0 million by

March 2010

• Third tranche budget support: $2.9 million by

March 2011

• Civil works: $2.52 million (2009–2012)

• Education development grants and scholarships:

$0.80 million (2009–2012)

• Furniture, equipment, and vehicles: $1.95 million

(2009–2012)

• Staff development and training: $3.01 million

(2009–2012)

• Printing of textbooks, teacher guides, and

24 Appendix 2

2. Improve relevance and quality of LSE

2.1 Arrange study tours for curriculum development group

2.2 Link to revised primary curriculum, develop new LSE curriculum and student outcomes, and draft upper secondary education curriculum

2.3 Provide equipment and/or materials to the National Research Institute for Education Sciences and to selected lower secondary schools in BESDP districts

2.4 Develop and new textbooks and teacher guides (100 titles) for LSE

years 1–4; print and distribute 1.34 million textbooks and 170,000

teacher guides for LSE years 1–2 to lower secondary schools

nationwide (free to public schools)

2.5 Provide 10 teacher training colleges and 137 lower secondary

schools with equipment, materials, and assistance to support the

new lower secondary curriculum

2.6 Provide 10 master trainers and 40 trainers with training materials and training of trainers

2.7 Develop and deliver teacher in-service training program to 7,000

teachers in all districts nationwide to support the first 2 years of roll-

out of the new 4-year LSE

2.8 Support ongoing National Assessment of Student Learning Outcomes

3. Strengthen capacity for improved planning, budgeting, management and

delivery of education

3.1 Revise the MOE annual yearbook and EMIS

3.2 Train all PES and DEB statisticians in data processing and analysis

3.3 Train 1,200 LSE school heads nationwide (and selected primary school

heads) in EMIS

3.4 Improve format and modify budget by level/type of education and function available in the MOE and all PESs

3.5 Pilot outcome-oriented budget process, aligned with plan and in line

with national policies, in at least 3 PESsa

3.6 Align regular, standardized accounts of expenses with modified and

improved budget format to permanently

monitor all education expenditure

3.7 Link the education MTEF with the government’s MTEF, based on

medium-term sector development targets and development

assistance expected flows by level of

education and function

3.8 Align planning and budgeting process in PESs based on the school mapping approach, teacher allocation and deployment process, and development assistance planned interventions

3.9 Conduct full inventory of MOE physical assets, with ongoing

monitoring

3.10 Make central storage of assets available in an upgraded, well-

equipped warehouse

in- service materials: $0.83 million (2009–

2012)

• Studies, monitoring and evaluation: $0.20 million

(2009–2012)

• Project operation: $0.14 million (2009–2012)

• Promote demand for lower secondary

and facilities development (8 person-

months international; 6 person-months

national)

• Develop curriculum revision, assessment, textbooks, teacher guides, in-service materials (20.5 person-months international; 36 person- months national)

• Strengthen decentralized education

management (19 person-months international;

62 person-months national)

• Project management and supervision support

(36 person-months international)

BESDP = Basic Education Sector Development Program, DEB = district education bureau, EMIS = education management information system, LSE = lower secondary education, MOE = Ministry of Education, MTEF = medium-term expenditure framework, PES = provincial education service, RRP = report and recommendation of the President, SY = school year. a. Includes minor refinements agreed at the midterm review, including to ensure alignment with the Loan and Grant

Agreements and in view of the extension of the LSE cycle from 3 to 4 years.

Appendix 3 25

PROJECT COSTS AT GRANT APPRAISAL AND CLOSURE BY COST CATEGORY AND FINANCIER

Table A3.1. Project Costs by Category and Financier

($ million)

APPRAISAL ACTUAL

CATEGORY

ADB Government Total

ADB Government Total

A. Base Cost Civil Works

2.62 0.81 3.43

3.85 1.01 4.86

Equipment, Furniture

1.95 0.00 1.95

1.16 0.00 1.16

Materials

0.84 0.02 0.85

1.03 0.00 1.03

Training

3.23 0.00 3.23

3.81 0.00 3.81

School Development

0.80 0.00 0.80

0.82 0.00 0.82

Studies

0.20 0.00 0.20

0.05 0.00 0.05

Project Management

0.23 1.99 2.22

0.39 2.01 2.40

Consulting Servicesa

1.69 0.00 1.69

1.52 0.21 1.73

Subtotal

11.54 2.82 14.36

12.64 3.22 15.86

B. Contingencies Physical

0.48 0.12 0.60 Prices

0.64 0.23 0.87

Subtotal

1.12 0.35 1.47

Total 12.66 3.17 15.83 12.64 3.22 15.86 a Taxes included as government contribution.

26 Appendix 4

STATUS OF COMPLIANCE WITH PROJECT COVENANTS Covenant Reference Status of Compliance

The Recipient shall (i) maintain, or cause to be maintained, separate accounts for the Project; (ii) have such accounts and related financial statements audited annually, in accordance with appropriate auditing standards consistently applied, by independent auditors whose qualifications, experience and terms of reference are acceptable to ADB; (iii) furnish to ADB, as soon as available but in any event not later than 6 months after the end of each related fiscal year, certified copies of such audited accounts and financial statements and the report of the auditors relating thereto (including the auditor’s opinion on the use of the Grant proceeds and compliance with the financial covenants of this Grant Agreement as well as on the use of the procedures for imprest account/statement of expenditures), all in the English language; and (iv) furnish to ADB such other information concerning such accounts and financial statements and the audit thereof as ADB shall from time to time reasonably request. The Recipient shall enable ADB, upon ADB’s request, to discuss the Recipient’s financial statements for the Project and its financial affairs related to the Project from time to time with the auditors appointed by the Recipient pursuant to Section 4.02(a) hereabove, and shall authorize and require any representative of such auditors to participate in any such discussions requested by ADB, provided that any such discussion shall be conducted only in the presence of an authorized officer of the Recipient unless the Recipient shall otherwise agree.

Article IV, Section

4.02 (a)–(b)

Substantially complied with.

The first audited project accounts (APA; now termed audited project financial statements [APFS]) combined audit of fiscal years (FY) 2008/09 due to limited financial transactions during the audit period covered. Auditor’s opinion was qualified. Findings included recording of financial transactions in Lao language and charging to incorrect category of expense. The management letter discussed issues and offered recommendations. Although audit of the imprest account and statement of expenditure (SOE) was undertaken, no specific audit opinion was presented for compliance with SOE and imprest account procedures, and with financial covenants.

The APFS for FY 2009/10 was received on 31 May 2011 (2 months after the due date). Auditor’s opinion was qualified and noted recommendations of the previous year’s audit had not been implemented. The management letter discussed issues and offered recommendations. Although audit of the imprest account and statement of expenditure (SOE) was undertaken, no specific audit opinion was presented for compliance with SOE and imprest account procedures, and with financial covenants.

The APFS for FY2010/11 was received on 9 March 2012 with a qualified auditor’s opinion due to internal control issues and unaddressed recommendations from previous year’s audit. The management letter discussed issues and offered recommendations. Although audit

Appendix 4 27

Covenant Reference Status of Compliance

of the imprest account and SOE was undertaken, no specific audit opinion was presented for compliance with SOE and imprest account procedures, and with financial covenants.

The APFS for FY2012 was received on 10 May 2013, with an unqualified auditor’s opinion, noting non-compliance with some of the auditor’s recommendations of the previous year’s audit and existing internal control issues. The management letter discussed issues and offered recommendations. Although audit of the imprest account and SOE was undertaken, no specific audit opinion was presented for compliance with SOE and imprest account procedures, and with financial covenants.

The final APFS, covering funds utilization for the last liquidation period of 1 October 2012 to 30 September 2013, was received on 27 January 2014. The auditor’s report indicated an unqualified auditor’s opinion, noting that the administration and management of project funds have been in accordance with the guidelines set by the Lao PDR government and ADB.

The Recipient shall enable ADB’s representatives to inspect the Project, the goods financed out of the proceeds of the Grant and any relevant records and documents.

Article IV, Section

4.03

Complied with. Periodic ADB missions were fielded to review project implementation. A random check of supporting documents on withdrawal applications claimed under the SOE procedures revealed a systematic filing system for easy document retrieval. A procurement capacity assessment mission was fielded in 2011 and evaluated the executing agency’s conduct of procurement of works, goods, and shopping procedures, including consultant recruitment. Findings noted the timely delivery of procurement

28 Appendix 4

Covenant Reference Status of Compliance

activities and compliance with the procurement regulations of ADB and the Lao PDR government.

MOE shall have the responsibility for Project coordination and implementation. The Steering Committee shall provide overall guidance to the Project and monitor its activities and outputs.

GA, Schedule

4, para. 1

Complied with. An MOES Steering Committee chaired by the minister provides senior guidance to the project and monitors its progress.

The Director General of the Department of General Education of MOE shall be the project director, and shall be assisted by the departments and institutions of MOE at the national, provincial and district levels for activities that fall within their respective areas of responsibility, the PMU established by the Recipient shall assist MOE to coordinate and supervise Project implementation. The PMU shall be maintained with adequate support staff and resources throughout the Project implementation period.

GA, Schedule

4, para. 2

Complied with. The director general of the Department of Secondary Education (redesignated name) of the MOES acts as the BESDP project director. The PMU was established and actively works with all the implementation units (IUs) for the BESDP.

The Recipient shall ensure that (i) counterpart funds required during the Project implementation period are provided on time; (ii) annual budgetary appropriation requests are submitted in a timely manner; and (iii) appropriated funds are disbursed promptly when needed for Project Implementation purposes.

GA, Schedule 4, para. 3

Complied with. Counterpart funds (including land for the newly constructed schools, pre-civil works land preparation, and recurrent costs such as a percentage of remuneration of MOES staff working in the PMU and IUs) were provided on time.

The Recipient shall ensure adequate and timely employment of qualified teachers for the new schools and additional classrooms to be constructed under the Project.

GA, Schedule 4, para. 4

Complied with. Teachers were deployed to the new schools and additional classrooms constructed under the BESDP. In SY2008/09, a quota for 4,000 additional teachers was approved by the government, with an additional 6,000 approved for SY2009/10 and 5,700 for SY2010/11.

The Recipient shall comply with, and shall cause MOE to comply with ADB's Anti-Corruption Policy. The Recipient (i) acknowledges ADB's right to investigate directly or through its agents, any alleged corrupt, fraudulent, collusive or coercive practices relating to the Project; (and (ii) agrees to cooperate fully with, and to cause MOE to cooperate fully with any such investigation and to extend all necessary assistance, including providing access to all relevant books and records, as may be necessary for the satisfactory completion of any such investigation. Without limiting the generality of the preceding paragraph, the Recipient shall (i) ensure that MOE conducts periodic inspections on the contractors'

GA, Schedule 4, para. 5

(a)–(c)

Complied with. Reflected in the draft bid documents approved by ADB. The BESDP website (http://besdplaos.multiply.com) was used to disclose project-related information: information on recent procurements, finalized scholarships and EDGP procedures. The BESDP also created a Facebook page (https://www.facebook.com/ groups/BESDP.friends).

Appendix 4 29

Covenant Reference Status of Compliance

activities related to fund withdrawals and settlements and (ii) ensure and cause MOE to ensure that all contracts financed by ADB in connection with the Project include provisions specifying the right of ADB to audit and examine the records and accounts of MOE and all contractors, suppliers, consultants, and other service providers as they relate to the Project. In relation to these requirements, to deter corruption and increase transparency, the Recipient shall create and maintain a website to disclose information about procurements related to the Project. For each contract, the website shall include information on, among others, the list of participating bidders, name of the winning bidder, basic details on bidding procedures adopted, amount of contract awarded, and the list of goods/services procured. In addition to the web-based disclosure, stakeholders, which include civil society and non-governmental organizations, shall be provided detailed information on procurement on public notice boards in their respective provinces. The Recipient shall also ensure that criteria and procedure for selection of candidates for scholarships is also similarly posted on the website.

The Recipient, through MOE, shall ensure that (i) construction of new schools and additional classrooms are carried out on vacant land owned by the Recipient, free from all encumbrances, habitation, dispute or controversy; and (ii) only subprojects categorized as "C" in accordance with ADB's requirements on involuntary resettlement and meeting the eligibility criteria for the selection of sites for civil works, as agreed between the Recipient and ADB, are selected. In the event of unforeseen land acquisition or involuntary resettlement, the Recipient shall immediately inform ADB and prepare the necessary planning documents in compliance with ADB's Policy on Involuntary Resettlement (1995).

GA, Schedule 4, para. 6

Complied with. Civil works under the project were completed, with adherence to ADB’s Policy on Involuntary Resettlement.

The Recipient, through MOE, shall ensure that the site selection, design, construction, replacement work, and operation of school facilities are implemented in accordance with the Recipient's relevant regulations and standards as well as ADB's Environment Policy (2002).

GA, Schedule 4, para. 7

Complied with. Phase I and Phase II civil works were completed, including water and electricity supply. The MOES met requirements during the construction phase and has continued to do so in the operation phase.

The Recipient shall cause MOE to ensure that the Gender and Ethnic Groups Development Plan (GEGDP) prepared for the Project is fully implemented and monitored in accordance with its terms, related Recipient regulations and ADB's Policy on Gender and Development (1998) and

GA, Schedule 4, para. 8

Complied with. The Inclusive Education Center (IEC; formerly the CEWED), which covers gender issues within the MOES, was one of the BESDP IUs

30 Appendix 4

Covenant Reference Status of Compliance

Policy on Indigenous Peoples (1998) in a timely manner, and adequate resources are allocated for this purpose. In particular, the Recipient shall ensure that (i) the Gender and Ethnic Groups Education Unit in the Department of General Education, MOE, is represented in the PMU and oversees the implementation of GEGDP; (ii) representatives from Lao Women's Union and Lao Front for National Construction assist facilitating participation of women, girls, and ethnic groups in Project activities; (iii) Project performance monitoring and evaluation indicators are disaggregated on the basis of gender ethnic background.

supporting GEGDP operationalization. The GEGDP has been reflected in scholarship and EDGP manuals. Under Output 1, construction of schools and additional classrooms included provision for separate toilets for girls and boys. Significant emphasis was placed on gender balance and collection of gender-disaggregated data in various initiatives (ranging from LSSGP scholarships to training and staff development, to data collection).

EDUCATION DEVELOPMENT GRANTS PROGRAM (EDGP) The Recipient shall establish, implement and monitor EDGP to (i) contribute to the improved planning and management of the schools in the communities, particularly in improving and maintaining the school facilities, creating and improving the teaching and learning environment, and aiming at improving the welfare and protection of teachers and students’; (ii) help increase enrolment in lower secondary schools, particularly girls, by mobilizing communities to support an environment conducive for learning; and (iii) promote gender equality in all aspects of school development program. The Recipient shall ensure that EDGP will provide annual grants to all 96 lower and complete secondary schools in rural areas selected under the Project for a period of 4 years. The grants provided from EDGP shall be used to support expenses in the following categories: (i) Consumable items for teaching activities such as chalk, paper, etc. but excluding items provided under the Project (e.g., textbooks, teachers’ guides and equipment). Maximum of 20% of EDGP funds shall be used for these activities; (ii) Minor repairs, replacement of locks, environmental improvements around the school yard, supplementary operation and maintenance etc. but excluding all major repairs for rehabilitation and new construction. Maximum of 30% of EDGP funds shall be used for these activities; (iii) extra-curricular activities generating income for the schools (e.g. weaving or handicrafts). Maximum of 50% of EDGP funds shall be used for these activities. Income generated from such activities shall be used for student development purposes, such as sports and outdoor activities, excursions, student debates and cultural activities.

GA, Schedule 4, para. 9

(a)–(b)

Substantially complied with. Due to initial start-up delays in project implementation, the EDGP could not be launched in SY2008/09 as intended. Following consultant fielding and preparation of the EDGP Manual, the EDGP was launched in SY2009/10, and provided three cycles of EDGP grants spanning 4 calendar years to 94 schools; 2 schools forfeited the last cycle due to delays in meeting liquidation requirements.

Appendix 4 31

Covenant Reference Status of Compliance

Following completion of the 4-year period indicated above, such income shall also be used for consumable items and minor repairs in the same proportions as indicated in the previous paragraphs.

The Recipient shall also ensure that funds granted under EDGP are managed by a student-parent association, established in accordance with the Recipient’s Regulations of the Association (No. 269/MOE/2002), adopted on 21 February 2002, on the roles and responsibilities of student-parent associations. The Recipient shall cause two student representatives, one male and one female, to be included in such associations as standing members in the schools covered under the Project, and increase representation of female members to at least 40% per association. Disbursement of funds from EDGP to any such association shall be subject to appointment of the student representatives and adjustment of the composition with respect to representation of female members.

GA, Schedule 4, para. 8

(c)

Complied with. Student-parent associations (SPAs) were established in 96 participating schools and managed the EDGP at the schools. SPAs maintained the required constituency (including at least 40% female membership and at least two children) through project completion.

The Recipient shall cause (i) the funds from EDGP to be transferred by MOE, through the PES offices, into the individual bank accounts of the student-parent associations twice a year, at the opening of the school year and the end of the first semester, unless otherwise decided between the Recipient and ADB; (ii) the amount of the grant received, description of the activities supported by such grant and related expense reports to be posted on the school news board; and (iii) the grants received under EDGP, to be monitored and audited by the PES on an annual basis.

GA, Schedule 4, para. 8

(d)

Complied with. EDGP funds were transferred to SPA accounts. In view of bank-related issues and delays, it was agreed that the MOES shall transfer funds directly to SPA accounts, in consultation with the PES. Annual audits were conducted in the form of liquidation at the end of each cycle, with materials reviewed and endorsed by the PES prior to further central review, based on requirements stipulated in the EDGP Manual. Liquidation was required prior to funding of the next cycle of proposals.

LOWER SECONDARY STUDENT GRANT PROGRAM The Recipient shall establish LSSGP to provide scholarships to poor and disadvantaged ethnic students, especially female students, in poor and rural areas for a period of 4 years. The Recipient shall ensure that at least half of the total numbers of these scholarships are reserved for female students. The selection criteria for the scholarships include the following: (i) eligible students shall come from any of the 96 lower and complete secondary schools in rural and poor areas selected under the Project; (ii) eligible students shall have successfully completed grade 5 examination; and (iii) at least half of the eligible students shall be female students, including those from poor and disadvantaged ethnic groups.

GA, Schedule

4, para. 10

Complied with. The Scholarship Manual, finalized in July 2009, also set out the LSSGP guidelines and program. As part of the baseline study, 1,638 scholars were selected from the 96 schools, based on the stipulated criteria, with a total of 1,556 (95%) successfully completing, of whom 797 (51%) were female and 1,168 (75%) were from ethnic groups. The grant closing date was extended to allow four annual cycles of LSSGP coverage, allowing thee scholars to receive LSSGP support through their

32 Appendix 4

Covenant Reference Status of Compliance

The Recipient shall cause the: (i) funds from LSSGP to be transferred by MOE, through the PES Offices, into the individual bank accounts of the beneficiary students twice a year; (ii) performance of such students to be evaluated by respective student parent association at the end of each school semester and reported to the PES; (iii) the scholarships to be terminated in cases where the student is unable to maintain an average level of performance and/or has been absent from school for an extended amount of time.

completion of LSE.

Appendix 5 33

SUMMARY OF GENDER EQUALITY RESULTS AND ACHIEVEMENTS I. PROJECT DESCRIPTION The Basic Education Sector Development Program (BESDP) was approved on 20 December 2006 and became effective on 29 October 2007. The BESDP’s program loan and project grant components collectively targeted the overall impact of increased and more equitable educational attainment among the adult population, and the outcome of expanded and equitable access to better-quality and more efficient lower secondary education (LSE).62 Supporting these objectives, the project component included three outputs: (i) expanding access to formal lower secondary education; (ii) improving quality of formal basic education; and (iii) strengthening capacity for education management. The Ministry of Education and Sports (MOES) of the Lao People’s Democratic Republic (Lao PDR) acted as the executing agency.63 Output 1 was geographically targeted on poor districts, whereas initiatives under outputs 2 and 3 were generally national or nationwide in scope. All outputs placed a strong emphasis on equity across gender, ethnic group, and other dimensions: e.g., (i) a stipend program under output 1 focused on girls and children from ethnic groups in targeted poor districts; (ii) support under output 2 ensured that the Lao PDR’s new national LSE curriculum, textbooks, and teacher guides were sensitive to gender and ethnic group issues; and (iii) capacity development under output 3 ensured equitable access to women. The project was categorized as Gender Equity theme. II. GENDER ANALYSIS AND PROJECT DESIGN FEATURES A. Gender Issues and Gender Action Plan Features In 2005, statistics on education in the Lao PDR showed large gender disparities in accessing primary education and LSE: e.g., among girls and boys in the LSE age range, the net enrollment ratio (NER) among girls lagged behind that for boys by more than 12 percentage points. Girls’ LSE enrollment was also particularly influenced by socioeconomic factors (e.g., poverty and ethnic group norms) as well as access to nearby schools. As a result, fewer girls transitioned from primary schooling into the secondary education subsector (SES) and successfully completed lower and upper secondary education (USE). The low rate of female enrollment in SES in turn translated into significantly lower numbers for female enrollment in teacher training colleges, depressing women’s representation in the field of teaching, particularly in SES schools.64 In addition to gaps in access, the MOES recognized the need to address important gender issues related to education quality (e.g., gaps in gender sensitivity in the existing LSE curriculum and learning materials) and education management (e.g., in some cases, differential access to capacity development opportunities). The Gender and Ethnic Groups Development Plan (GEGDP) of the project was developed to collectively address gender and ethnic group equity issues in access to education, education quality dimensions (e.g., gender sensitivity in textbooks and female teachers’ access to training), and broader sector management. The GEGDP served as a tool for monitoring and addressing gender- and ethnic group-related issues spanning all three outputs (with relevance also for several of the program loan policy actions), including via reporting on GEGDP-specified targets

62

The BESDP’s two components with ADB-financed amounts were (i) a program loan (Loan 2306-LAO) of SDR6,008,000 (equivalent to $8.9 million at the time of approval), and (ii) a project grant (Grant 0069-LAO) of $12.66 million.

63 The MOES was restructured from the former Ministry of Education midimplementation. For simplicity, the current name is used throughout this report.

64 Appendix 6, Report and Recommendation to the President (RRP), p. 40, 42–43.

34 Appendix 5

using gender-disaggregated data in the project’s quarterly and annual progress reports, and during ADB review missions, with support also from the gender focal point at the Lao PDR Resident Mission throughout the project life. As detailed in the attached tracking matrix, key focal areas specified in the GEGDP included the following: (i) provision of new school buildings and additional classrooms in 10 poor districts where

girls and children from ethnic groups (especially girls) have high dropout rates, and ensuring that constructed facilities were conducive to increasing female enrollment (e.g., including separate toilets for boys and girls);

(ii) provision of 1,638 LSE students with scholarships (targeted to poor ethnic group graduates from primary school) in poor districts, with at least 50% of slots reserved for girls;

(iii) provision of educational development grants (EDGs) to 96 lower secondary and complete secondary schools to improve school conditions and initiate activities to attract female and ethnic students;

(iv) establishment of student-parent associations (SPAs) in each of the 96 rural schools and due attempts to ensure at least 40% of SPA members are women, with at least one girl and one boy as student representatives;

(v) support for the deployment of LSE teachers (including female teachers), by recruiting and training them;

(vi) inclusion of gender and ethnic-specific factors in a baseline study (see section III.1) on factors that inhibit participation and retention in LSE and potential remedial measures, including scholarships;65

(vii) development of reformed curriculum for LSE and USE as well as curriculum materials (textbooks and teacher guides) that are fully sensitive to gender and ethnic group issues and do not carry negative biases but rather positively integrate ethnic knowledge and gender-specific information;

(viii) development of in-service teacher training programs and modules that are fully sensitive to gender and ethnic group issues and free of negative biases; and

(ix) capacity strengthening for education management, through (among others) a gender-disaggregated education management information system (EMIS) that tracks students and teachers.

B. Overall Assessment of Gender-Related Results/Achievements The GEGDP implementation was highly satisfactory, accomplishing all 22 action points, thanks to strong emphasis by the PMU, the MOES implementing units, and the consultants throughout the project. This contributed to the BESDP’s success in achieving the intended outcomes, outputs, and other project targets, and also in mainstreaming gender (as relevant) in policy support under the program loan. In terms of orders of total coverage, the BESDP support to the Lao PDR’s curriculum reform reached the largest number of beneficiaries. During the project period alone, roughly 550,000 girls and boys benefited from the improved LSE curriculum and the distribution of 1.34 million copies of the improved textbooks for grades 6–7 to all schools teaching these grades nationwide; at least 10,000 female and male teachers benefited from distribution of 170,000 copies of the new teacher guides for grades 6–7; while an estimated 8,070 teachers (of which

65

These were printed and distributed (1,426 copies) and posted on the MOES and BESDP websites. The bilingual version is at http://www.moe.gov.la/data/publications/baseline_study_report_lao-eng.pdf.

Appendix 5 35

48.2% were female) benefited from two rounds of nationwide in-service teacher training to deliver the new curriculum. As outlined below and in the main text, other initiatives covered smaller numbers of beneficiaries, but in some cases with a more direct and/or far-reaching impact: e.g., the BESDP’s scholarship program supported LSE enrollment by 1,638 poor children (841 female and 797 male), with a total of 1,556 scholars (of which 51% were girls and 75% were from ethnic groups) able to successfully complete LSE. C. Gender Equality Results 1. Participation, access to project resources, and practical benefits As noted above, the project explicitly prioritized girls for some interventions, including scholarship benefits under the LSSSP, which support 1,638 scholars and helped 797 girls and 759 boys to complete LSE.66 Beyond staying in school alone, monitoring visits suggested that many scholars excelled as high performers in their classes (perhaps empowered by receipt of financial and broader support), which is an unintended (positive) impact of the project.

The Road Less Traveled in Nonghet District, Xiengkhuang Province67

Pheng Bounma is a Laotai girl who benefits from the BESDP’s scholarship program. Like many poor children in Nongkhet District of Xiengkhuang Province, she was overage in completing primary school and had low prospects for entering or completing any secondary education. She was born into a big family with 12 siblings, relying on meager income livelihood from growing corn. But at age 17, she still proudly walks the 2 kilometers to attend school every day, as a grade 8 student of Phouhuasang Lower Secondary School. She notes that since she has received scholarship support, she can now afford to buy learning materials and a school uniform. Pheng is very happy and proud to be a BESDP scholar, which motivates her to perform well in school. She adds that if she had not received scholarship support, she would likely have dropped out already, like most girls her age in her village. She likes all her subjects, despite finding English and Mathematics difficult. She also likes the new textbooks (developed and distributed nationwide with BESDP support). She is very proud and happy with her school, likes all her teachers, and has good relationships with her classmates. She sees a path leading her to a brighter future, with a burning desire to be a teacher to teach young girls in her village, where being in school is a privilege few girls

Female teachers were also given priority in selection for teacher training delivered to teachers of grade 6 and grade 7 (the first two years of LSE) nationwide (and in subsequent training rounds supported under the Secondary Education Sector Development Program). The trainings (along with BESDP-developed teacher guides) focused on preparing teachers to teach the new

66

The LSSSP provided a scholarship fund of KN410,000 per semester per student. 67

Case studies herein are drawn from 2011 and 2013 interviews with student and teacher beneficiaries. For additional stories of BESDP scholars, see http://www.adb.org/projects/32312-013/documents.

36 Appendix 5

curriculum and use the new textbooks with the phased introduction of the new curriculum, which was developed with BESDP support.

Teaching on the Front Line

Achan (Teacher) Khonsavanh Souvannachoumkham is an English teacher in Ban Seuth Lower Secondary School in Kong district of Champassack province. She started teaching after graduating from the provincial teacher training institute 3 years ago. Life is not easy as a young teacher in a remote area—Kong District sits near the southern tip of the Lao PDR, on an island in the middle of the Mekong River about 30 kilometers from where it enters Cambodia. After a long day of teaching and student and school activities, she retires to 1 of 2 small rooms in a small and very basic wooden and sheet metal dormitory provided by the community for her and another teacher inside the grounds of a new BESDP-constructed school. However, it is Ban Seuth’s relative isolation and the challenges of teaching—the need to translate her pre-service training into the realities of a rural classroom—that initially posed the greatest challenges. Ban Seuth is far removed from urban areas and most of Achan Khonsavanh’s family, though fortunately her sister teaches in a primary school not too far away, while a new bridge has also helped to lessen the sense of isolation. She also draws strength from monthly visits from another strong woman, Achan Khamfon Sophavady, the lead secondary education staff member from the Kong District Education Service Bureau, who braves the bumpy dirt road by motorbike to check on the school, its staff, and BESDP-supported initiatives there. Achan Khonsavanh is also particularly appreciative of her participation in the 2011 round of the BESDP’s annual in-service teacher training: in addition to preparing her to deliver the new curriculum and textbooks (introduced with BESDP support), she now better grasps lesson planning and how to apply truly learner-centered approaches to develop her students’ high-order thinking skills. Such support has empowered her and redoubled her commitment to teaching despite the day-to-day challenges: she realizes that she is the solution to those challenges. Her school may lack some of the facilities of an urban school, but she can use pictures on the blackboard and design simple materials herself to support teaching and learning activities for her students. When asked of her future aspirations, she notes that she hopes to further upgrade her English ability, perhaps by pursuing a summer bachelor’s degree course. However, she is quick to add that her place is here in Ban Seuth. The message of her commitment, resolve, and strength is clearly not lost on her students.

The project also was effective in involving village education development committees and SPAs in managing the LSSGP as well as the EDGP. More broadly, the SPAs—which including 192 women among the 480 total members (5 per school), or 40% of membership—helped make women’s voices heard in the school management process, though changing norms is clearly a longer-term process. A total of 28 new school buildings and 144 additional classrooms were constructed in 10 selected poor districts, where female or ethnic students, especially ethnic girls, have high dropout rates. The facilities were made conducive to increasing female enrollment by including

Appendix 5 37

separate toilets for boys and girls, the provision of water systems to all 68 sites, and the installation of electricity to a majority (at 5 of the 68 sites this remained logistically not feasible). In terms of education management, the project supported the MOES in developing an improved annual student census form (ASCF), as a tool to support collection of more and better school data (including gender- and ethnic group-disaggregation), in turn providing a better basis for evidence-based planning decisions. Training to support implementation covered (i) 78 trainers (including 23 women) in 17 provinces on the use of revised EMIS tools; (ii) 85 provincial trainers (18 of them women) on data collection, processing, and analysis; and (iii) training for school heads on data collection and basic analysis for 1,250 secondary school heads (145 of them women) nationwide, and 647 school heads (250 of them women) of incomplete primary schools in 18 selected districts. 2. Strategic changes in gender relations The GEGDP catalyzed affirmative action to address significant disparities in girls and ethnic students’ access to basic education. The higher the educational attainment for boys and girls, the better their self-esteem and motivation will be to proceed to higher levels of education, to complete their studies, and to equip themselves for better socioeconomic options. The project facilitated the deployment and training of more female teachers to provide positive role models for boys and girls who might aspire to become teachers themselves. The continuing need for more teachers, especially female teachers, is a good incentive for students because of bright prospects for immediate employment. Also, as noted above, the BESDP supported reforms to the curriculum and introduction of a gender-sensitive curriculum, textbooks, and teacher guides (with messages reinforced by BESDP-supported training of teachers nationwide). The Inclusive Education Center (IEC), the focal unit for gender issues within the MOES, is one of the BESDP IUs and is supporting GEGDP operationalization. The GEGDP is reflected in scholarship and EDGP manuals, etc. The IEC conducted a consultation meeting with the Lao Women’s Union and the Lao Front for National Construction. Support for school survey design and data collection and analysis is promoting increased gender-disaggregation in data. Data on gender and ethnic composition were regularly reported to assess the GEGDP and overall BESDP implementation.

Broadened Horizons

Waomona, a 15 year-old LSSGP scholar, lives in Mok district and studies in Khangvieng Primary and Secondary School. She is the second child in a poor family which (like most of her village) relies solely on farming. But Waomona is different: she is one of very few girls in her school and is now in grade 8. Her school’s principal noted that in recent years, one could hardly find a girl of Waomona’s age still studying in this area. In her village, it is typical to expect that, by age 13 or 14, girls are already married. By local norms, marriage is the ultimate goal for girls in the village. If they are not married by age 16 or 17, they are often viewed as too old to get married. However, the principal notes some signs of change, with girls like Waomona now entering and staying in lower secondary school.

38 Appendix 5

Unlike many girls in her village, Waomona does not want to get married early and insistently strives to finish her studies. She wants to make her own decisions. With the help of the scholarship, she is able to buy her school uniform, learning materials, books, and pens. She said that as long as she receives scholarship support, she is determined to finish her studies. At 7:30am every day, she comes to school eager to study: her parents support this, allowing her to help her family with farming and chores during weekends. Waomona wants to be a teacher someday, so that she can educate her brothers and sister: they used to attend school but dropped out due to poverty and the need to help in farm labor. She also dreams that as a teacher, she can educate other children in her village, encouraging both girls and boys to pursue education.

3. Contribution of Gender Equality Results to Overall Outcomes and Effectiveness The strong emphasis given to GEGDP implementation project-wide contributed to the achievement of outcome targets and other broader objectives. In terms of the two gender targets specified as outcomes, interventions in the GEGDP helped contribute to a rise in (i) the share of girls in new admissions to LSE (which rose from a baseline of 44% in SY2004/05 to 46.2% in SY2011/12); and (ii) the primary-LSE transition rate among girls completing primary school, which considerably outpaced the increase for boys (narrowing the gap) and rose to 84.3% in SY2011/12 and 87.2% in SY2012/13. Although not specified in the DMF, gender-disaggregated tracking of other outcome indicators also suggests that the BESDP contributed to narrowing gender gaps in other dimensions. In terms of the target for LSE GER (baseline value of 54% in SY004/05), although the extension of LSE by 1 year in SY2009/10 had an automatic statistical effect of depressing the GER, the GER rose thereafter, reaching 64.6% in 2011/12 (60.2% for girls and 68.7% for boys), and 69.1% in SY2012/13 (65.3% for girls and 72.6% for boys). In terms of total headcount output of LSE graduates, girls outpaced boys: between SY2006/07 and SY2011/12, despite the effect of adding a fourth year of LSE, the numbers of female LSE graduates rose by more than 11%, more than double the increase in male graduates. Finally, although the project missed the outcome target on reduction of dropouts, LSE dropout rates dropped for both boys and girls, from roughly 11% and 13% for females and males in SY2004/05 to roughly 8% and 10% by SY2012/13. Looking at broader objectives, in recent years, both girls’ and boys’ performance has improved in both scores on the national examinations at the end of LSE and olympiad competitions, with particular increases for girls in science and math, suggesting improved learning outcomes. III. LESSONS LEARNED AND RECOMMENDATIONS Crucial factors of success in achieving GEGDP targets. The most crucial asset for the GEGDP was strong MOES ownership of gender and other dimensions of equity. Early dialogue in designing and implementing the BESDP helped reinforce this ownership—in an important approach, the BESDP tapped existing institutions and champions within the MOES, including the IEC and within the Department of Secondary Education, rather than relying solely on consultants. For example, technical and financial support to the IEC in leading the Baseline Study on Factors Inhibiting Students to go to School and Strategic Interventions to Increase Participation and Retention of Lao PDR Students in School (see Section I.A) paid dividends later during the project. Such up-front support (including consultant inputs) helped put in place gender-disaggregated baseline and monitoring data and involved multiple MOES units at

Appendix 5 39

different levels in analyzing gender gaps to be addressed, thus building awareness and guiding the development of sharpened gender-responsive strategies (e.g., scholarships prioritizing poor girls and ethnic children, designs of toilets and other school infrastructure, curriculum material development, teacher training and deployment, and community engagement through the SPAs). Other interlinked key factors included strong and consistent monitoring of gender-disaggregated data throughout the project, and ADB follow-up on gender dimensions during missions and periodic support from the gender focal point at the Lao PDR Resident Mission. Although initial ownership may vary across future project contexts, a key recommendation is to provide early emphasis on gender dimensions and invest considerably in building up champions during project design and early-stage implementation. Key constraints encountered in GEGDP implementation and how these were addressed. First, the GEGDP (and the BESDP more broadly) faced inherent underlying challenges, including low primary-LSE transition rates and high dropout rates within LSE, especially among girls. These reflect an array of deep-seated factors (e.g., poverty, cultural norms, and socioeconomic factors). Building on the BESDP’s preparatory analysis, the noted baseline study led by the IEC helped provide a deeper and more broadly owned understanding of these challenges, given that nearly all analysis to date had focused on primary education. In addition to the technical support noted above, the project was relatively effective in engaging communities, including through SPAs and the EDGP, as well as consultations with local governments, parents, and students, which helped promote understanding of the value of education, especially for girls. Mothers’ participation in SPAs and EDGP implementation also provided a stronger basis for their involvement in school improvement, particularly in ethnic communities. For future projects, the main recommendation is thus to ensure adequate analysis of such constraints, in order to design contextually appropriate responses (avoiding cookie-cutter solutions). An array of approaches may be needed (e.g., as a lesson from the BESDP, the SESDP’s design will complement stipends for poor girls and boys with construction of low-cost dormitories to combat distances, and remedial and psychosocial support to address broader challenges facing poor stipend recipients). A balance needs to be struck: providing comprehensive approaches while avoiding “Christmas tree” approaches that spread human and financial resources too broadly. At a more micro level, gender targets should consider the appropriate level of aggregation and how targets can be best operationalized.68

Factors to ensure that changes brought about by the project are sustainable post-project. As with the above, the key lesson (and recommendation) is the need to reinforce local ownership, having consultants and project processes supporting not supplanting existing institutions. This of course means compromising and ensuring consensus on realistic gender targets, and the need to build in time and resources for capacity development. However, in the case of the Lao PDR, the longer-term benefits of this approach became very clear during the preparation of the SESDP, where conceptualization could build on an already strong equity agenda.

68

For example, a teacher training program or scholarship program that requires a minimum share of women or girls may prove non-viable if applied to individual schools if there simply aren’t enough female teachers or students. However, if only the aggregate share is announced, schools that are able may exactly hit the target (rather than exceeding the target), such that aggregate targets will be missed.

40 Appendix 5

Broader recommendations for future projects in the sector. Related to the above, general recommendations include the following:

(i) emphasizing gender and broader equity dimensions from early stages—not as an afterthought;

(ii) determining the right balance and division of labor between consultants and government staff and institutions at various levels. Front-end work should assess the context and identify potential existing champions, and then build their capacity and positioning during project implementation;

(iii) setting realistic targets that are formulated and finalized with the government and based on thorough analysis of the key gender issues in the sector, in order to ensure government ownership (a positive lesson from the BESDP);

(iv) striking the right balance of comprehensiveness in addressing multi-pronged challenges linked to gender with the need for focus and viability;

(v) embedding gender aspects in both pre- and in-service teacher training—the BESDP principally focused on in-service training, while the SESDP will also support pre-service training, to help ensure that new teachers already have an appreciation of gender sensitivity (and student-centered learning and related issues) when they first enter teaching.

Appendix 5 41

GEGDP MONITORING69

BESDP Output Actions Identified in GEGDP

70 Status (as of April 2014)

A. Expand Access for Formal Lower Secondary Education

1. Promote equitable access 2. Alleviate pressure on existing school facilities

Provide new school buildings and additional classrooms in the 10 poor/poorest districts, where female or ethnic students, especially ethnic girls, have high dropout rates. Construct facilities conducive to increasing female enrollment (e.g., provision of toilets for girls).

Completed. Designed and built 28 school buildings and classroom blocks (totaling 144 additional classrooms), including separate toilets for boys and girls and the provision of water supply. All schools and classrooms are in use by LSE students at all sites.

3. Support poor students and schools

Provide 1,638 LSSGP scholarships to poor ethnic children (graduates from primary school) from poor districts for LSE, of which at least 50% will be reserved for girls.

Completed. IEC-led baseline survey for scholarship completed in September 2009; selection of 1,638 scholars including 841 girls (51.3%) finalized in October 2009, along with a reserve list in case of any dropouts. The large majority (79%) are from ethnic groups, with the remainder from very poor non-ethnic children. A clear replacement procedure ensured that poor ethnic children were selected from the reserve list and that the share of girls was maintained (girls must be replaced by girls). Based on confirmed final figures, the program had 94 net dropouts with 1,556 successful LSE completers, of whom 797 (51.0%) were girls and 1,168 (75.1%) were children from ethnic groups.

Provide EDGs to 96 rural lower secondary/complete secondary schools to improve school conditions and initiate activities to attract female and ethnic students.

Completed. The EDGP manuals include requirements for reporting of fund use and emerging impacts for female, ethnic, and poor students. Despite implementation delays, all 96 schools received their EDGP fund support. The SPA Congress conducted in 2012 featured best practices related to EDGP implementation, ranging from income-generating activities to school-based actions to address girls’ and boys’ dropout from school and other challenges.

Establish an SPA in each of the 96 rural schools, according to Regulations of the Association (269/MOE/2002/21 February 2002) with modifications. The government will, wherever feasible, work to ensure at least 40% of SPA members are women. At least one girl and one

Completed. SPAs were established/reconstituted in rural schools starting in January 2010. All 96 SPAs maintained compliance with the EDGP Manual requirements on constitution: for the life of the project, each school maintained an SPA membership of 5 including 1 woman and 1 girl student (thus totaling 192 of 480 females program-wide). The 96 SPAs were often proactive, as shown in their support to the various

69

For the sake of consistency with the original GEGDP, the MOE name is retained in the statement of GEGDP actions (left columns), but changed to the MOES in the rightmost column.

70 Actions are those identified in the GEGDP included as Appendix 6 of the RRP, excepting correction of a typo in the second action in that document (first use of "girls" was replaced by "children").

42 Appendix 5

BESDP Output Actions Identified in GEGDP

70 Status (as of April 2014)

boy will be student representatives.

EDGP subcomponents, especially on the implementation and monitoring of the income-generating projects.

Ensure each SPA is representative of the ethnic composition of the school (i.e., teachers, students, parents) and the host village of the school.

Completed. Field monitoring confirmed membership of each SPA adequately represents the ethnic composition of the school and villages served by the school, Compliant with the EDGP Manual.

Ensure each SPA consults with both sexes and with students of different ethnicity, or their student representatives, before deciding on grant-funded activities.

Completed. The MOES Department of Nonformal Education, IEC, and BESDP Team monitored and verified compliance during SPAs’ development of cycle 1-3 proposals: projects were formulated through SPA consultation of both sexes and different ethnic students.

Deploy ethnic LSE teachers, including women, by recruiting and training them according to priority development needs assessed by the school map.

Completed. The development of ethnic LSE teachers was given priority in the approved policy framework for teacher management and development (developed with BESDP support), including in Section 4 on Teacher Testing and Professional Certification. The policy framework is now in effect, and the MOES will track the gender and ethnicity of new deployments, while the SESDP is commencing a pilot to expand deployment of female and ethnic group teachers to the most underserved areas.

4. Conduct LSE studies on access

Include gender- and ethnic-specific factors in the study on baseline factors that inhibit participation and retention in LSE, and the alternative modes of lower secondary delivery, modes of subsidy, and nature of incentives to encourage enrollments.

Completed. The baseline study report was completed in Lao and English: a dissemination workshop was completed in July 2011, with final printing of the Lao version in January 2012, and web-based dissemination of a bilingual version. The study assesses factors undermining the enrollment of girls and boys and potential measures in response. Data collected was also used to identify the 1,638 scholars (see above).

Undertake focus group interviews when confirming the factors with teachers and students of different sexes, ethnicity, ages and income levels.

Completed. Extensive discussions were conducted during the baseline survey (see above) in September 2009. The baseline study report (see above) draws on focus group discussions and interviews: 986 of 1,940 respondents (51%) were women and girls.

B. Improve the Quality of Formal Lower Secondary Education

1. Improve curriculum development

Ensure that the new curriculum (grades 1–12) and curriculum guides are fully sensitive to gender and ethnic group issues and do not carry negative biases.

Completed. A quality matrix for checking the draft curriculum (including gender and ethnic group issues) was prepared by the Consultants and adopted by Research Institute for Education Sciences in August 2009.

Integrate ethnic knowledge (e.g., culture) and gender-specific

Completed. The approved new LSE textbooks and teacher guides integrate ethnic knowledge

Appendix 5 43

BESDP Output Actions Identified in GEGDP

70 Status (as of April 2014)

information (e.g., trafficking awareness) into new curricula. Include gender- and ethnic-specific targets in student learning outcomes and assessment framework (4-year LSE program).

and gender-specific information (e.g., graphics and examples portray balanced and equitable gender roles).

Ensure the Lao Front for National Construction (LFNC) and Lao Women’s Union (LWU), which are important stakeholders, are invited to national curriculum development workshops.

Completed. The LFNC and the LWU participated during the July 2009 LSE curriculum workshop of the MOES Committee on Approval of Curriculum and Instructional Materials (CACIM), and again attended the CACIM USE curriculum workshop in November 2010.

2. Provide teacher Development

Disaggregate training participation records by gender and ethnicity.

Completed. All teacher development activities record gender- and ethnicity-disaggregated figures. For grade 6 teacher training before SY2010/11, of 4,033 public school grade 6 teachers trained, 1,834 (45.5%) were women. For the grade 7 training (which covered 4,215 public school teachers), 51% were women and 21% were from ethnic groups, while 46% were from schools classified as in rural and poor areas. This will be repeated for annual training rounds for grades 8-12 under the SESDP. An additional teacher survey conducted by the MOES Department of Personnel (partially funded by the BESDP) in six provinces also used disaggregation.

Develop in-service modules in selected subject areas that are fully sensitive to gender and ethnic group issues and free of negative biases.

Completed. In-service modules developed in June 2010 for grade 6 training addressed these aspects: e.g., the modules encourage teachers to incorporate in their lessons examples of women in roles often associated with men (e.g., engineers, doctors). This was repeated in grade 7 training the next summer and will be repeated for annual training rounds for grade 8–M7. As noted above, newly developed and distributed teacher guides followed a quality matrix to ensure that they are fully sensitive to gender and ethnic group issues and free of negative biases.

C. Strengthen Capacity for Education Management

1. Strengthen EMIS

Disaggregate national, provincial, district, and school data in the information system by gender and by ethnicity for the EMIS (including the TMIS).

Completed. EMIS data generated by the MOES Education Statistics Center (ESC)—formerly the Education Statistics and Information Technology Center—and the Annual Bulletin disaggregates information by gender and by ethnicity. In the BESDP’s original design, the TMIS was to be culled from an existing project management information system (PMIS); however, this approach was later revised. The BESDP’s focus shifted to assisting the MOE in developing and

44 Appendix 5

BESDP Output Actions Identified in GEGDP

70 Status (as of April 2014)

implementing the improved annual school census form (ASCF) data collection tool, which allows the ESC to populate the existing education management information system (EMIS) with core school data on teachers and finance, disaggregated by gender and ethnicity.

With other partners, provide equal capacity-building opportunities for women and officials from ethnic groups from the MOE, PESs, DEBs, and school staff for improved data collection, processing, computer training, and management of the EMIS and TMIS.

Completed. Related training was conducted by the ESC with BESDP Team support, and ensured opportunities for female and ethnic group participants from the MOES, PESs, DEBs and school staff: e.g., the school heads training invited all school heads (regardless of gender). Related trainings included (i) training on the use of revised EMIS tools for 78 trainers (23 of them women) in 17 provinces; (ii) training on data collection, processing, and analysis for 85 provincial trainers (18 women); and (iii) training for school heads on data collection and basic analysis for 1,250 secondary school heads (145 of them women) nationwide, and 647 school heads (250 women) of incomplete primary schools in 18 selected districts. In most localities, women account for a small share of staff in related positions; hence the target was to prioritize access by female staff among all staff holding such positions (rather than aiming for parity).

Review questionnaires and other instruments to ensure that disaggregated information can be collected from schools, pupils, education staff, and PESs.

Completed. The ASCF form (which is the basis for the EMIS data) has been reviewed and is in compliance with this requirement.

Include men and women, irrespective of ethnicity, as workshop participants.

Completed. This was followed in all BESDP workshops conducted, as reflected in the figures for teacher training noted above.

Explore ways of involving the school management committee in verifying data.

Completed. The roles of the SPA (also called the “school management committee” in the RRP) were included in the guidelines developed for standardizing data collection, processing and analysis. The BESDP Team also provided inputs to the MOES’ consideration of revisions to the existing decree on SPAs.

2. Strengthen planning and budget development

Take into consideration gender and ethnic-specific issues into new planning format and process. Formats allow information to be disaggregated by sex and ethnicity.

Completed. ASCF formats served as inputs to the new planning format and process. Information allows disaggregation by gender and ethnicity. The report card system also complied with this requirement.

Ensure male and female staff, of different ethnicity have equal opportunity to attend workshops to assess and validate the improved budget and actual

Completed. Male and female staff of different ethnic groups had equal opportunity to attend workshops, depending on their roles and duties in the PESs and DEBs. Training invitations to units noted prioritization of female staff and gender-

Appendix 5 45

BESDP Output Actions Identified in GEGDP

70 Status (as of April 2014)

expenditure format, modern financial management techniques, and data collection instruments.

disaggregated attendance was tracked. See also item C1.

Provincial/district education plans include specific sections on improving access and quality of education for the poor disaggregated by gender and ethnicity.

Completed. Provincial/district education plans embedded the aim of improving access and quality of education for the poor, including disaggregation by gender and ethnicity.

BESDP = Basic Education Sector Development Program, DEB = district education bureau, EDG = education development grant, EMIS = education management information system, FMIS = financial management information system, LSE = lower secondary education, LSSG = lower secondary student grant, MOE = Ministry of Education, MOES = Ministry of Education and Sports, MTEF = medium-term expenditure framework, PES = provincial education service, PMIS = personnel management information system, PMU = project management unit, SPA = student-parent association, TMIS = teacher management information system.