Document ofTHE WORLD BANK

Report No. 15830-PAK

STAFF APPRAISAL REPORT

PAKISTAN

NORTHERN EDUCATION PROJECT

September 30, 1997

Education Sector UnitSouth Asia Region

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CURRENCY EQUIVALENTS

Currency Unit = Rupees (Rs.)

US$1.00 = Rs.40.50 (as of June 1997)

GOP FISCAL YEAR (FY)July 1 - June 30

PRINCIPAL ACRONYMS USED

ADP Annual Development Plan (Development Budget)Assistant Education Officer

AIOU Allama Iqbal Open UniversityAJK Azad Jammu and KashmirAKDN Aga Khan Development NetworkAKESP Aga Khan Education ServiceAKRSP Aga Khan Rural Support ProgramBEd Bachelor's of EducationCRDC Curriculum Research Development CenterCT Certificate of TeachingDFID Department for International Development (formerly British ODA)DOE Department/Directorate of EducationDPIEE Directorate of Public Instruction, Elementary Education, AJKECNEC Executive Committee of the National Economic CouncilEEC Education Extension CenterEMIS Education Management Information SystemESL English as a Second LanguageFBTD Field-Based Teacher DevelopmentFEDEMIS Federal Education Management Information SystemGCET Government Colleges of Elementary TrainingGOP Government of PakistanICB International Competitive BiddingIDA International Development AssociationINSET In-Service Teacher EducationKANA/SAFRON Ministry of Kashmir Affairs and Northern Areas and States and Frontier RegionsMEd Master's of Teacher EducationMSU Multi-Donor Support UnitNA Northern AreasNCB National Competitive BiddingNEP Northern Education Project (Pakistan)NGO Non-Governmental OrganizationNWFP North West Frontier ProvincePIU Project Implementation UnitPTA Parent-Teacher AssociationPTC Primary Teacher CertificateSAP Social Action ProgramSAPP Social Action Program ProjectSOE Statement of ExpensesUNICEF United Nations Children's FundVEC Village Education CommitteeVO Village Organization

Vice-President Mieko Nishimizu

Country Director Sadiq Almed

Education Sector Manager Ralph W. Harbison

Task Team Leader Ana Maria Jeria

ISLAMIC REPUBLIC OF PAKISTAN

NORTHERN EDUCATION PROJECT

Table of Contents

Page No.

Project and Credit Summary ............................................. i

I. SECTORAL BACKGROUND AND ISSUES ............... 1.................. A. Introduction .............................................. 1B. Overview of Education in the Northern Areas ......................... 2C. Overview of Education in Azad Jammu and Kashmir .................... 3D. Education Finance . ........................................ 4E. Main Sector Issues . ........................................ 5

School Quality Issues . ...................................... 5Access, Equity and Efficiency ................................ 8Institutional and Managerial Issues ............................. 9Community Participation and Links with NGOs ...................... 11

F. Government and Donor Strategies in Basic Education .................... 12G. IDA Strategy and Rationale for Project Investment ...................... 13H. Lessons from Experience . ...................................... 13

II. THE PROJECT ............................................... 15A. Project Approach and Objectives ................................. 15B. Project Description ........................................... 16

Improving Education Quality ................................. 16Increasing Equitable Access .......... ........................ 19Strengthening Institutional Capacity ............................. 20Community Participation .......... ......................... 22

C. Project Management and Implementation ............................ 24Project Management and Coordination ........................... 24Implementation Timeline and Modalities .......................... 25Implementation Responsibilities ............................... 25Role of NGOs ........................................... 25

D. Monitoring, Evaluation, and Supervision ............................ 26Program and Project Progress and Reporting ....................... 26IDA Supervision . ........................................ 27

III. PROGRAM AND PROJECT COSTS ................ ................... 28A. Program Costs ............................................. 28B. Project Costs ............................................. 28C. Financing Arrangements . ..................................... 31D . Procurement .............................................. 31E. Disbursement .......................................... 34F. Accounts and Audits ......................................... 35

IV. ASSESSMENTS ............................................... 37A. Financial Assessment and Sustainability ............................. 37

B. Institutional Assessment ....................................... 38C. Economic Assessment, Benefits and Risks ........ ................... 38

Benefits . ...................................... 38Cost-Effectiveness .................... 39Risks ..................... 40

D. Environmental Assessment .................... 41

V. AGREEMENTS REACHED AND RECOMMENDATION ........ .............. 42

TABLES

Table 3.1 Estimated Elementary Education ProgramTable 3.2 Elementary Education Program Financing PlanTable 3.3 Components Project Cost SummaryTable 3.4 Project Financing PlanTable 3.5 Procurement Arrangements

ANNEXES

Annex 1 Educational StatisticsAnnex 2 Financial EvaluationAnnex 3 Community ParticipationAnnex 4 Northern Areas Priorities and Strategies in Elementary EducationAnnex 5 Azad Jammu and Kashmir Elementary Education Priorities and InvestmentsAnnex 6 Project Monitoring and EvaluationAnnex 7 Institutional and Implementation ArrangementsAnnex 8 IDA Project Supervision and Mission ScheduleAnnex 9 Components Project Cost SummariesAnnex 10 IDA Disbursement ScheduleAnnex 11 Technical Assistance (TA)Annex 12 Accounting, Financial Reporting and Auditing ArrangementsAnnex 13 Economic EvaluationAnnex 14 Selected Documents in Project File

This report is based on the findings of the pre-appraisal/appraisal mission that visited Pakistan inMarch/April 1996, and reflects revisions to accommodate overall cuts to the project prior to ECNECapproval in May 1997. The appraisal mission comprised: A.M. Jeria (Mission Leader and TaskManager); I. Appasamy (Operations Analyst); A. Naqvi (Education Specialist); M. Sutton (EducationSpecialist, Consultant); N. Abbas (SAP Multi-Donor Support Unit, Pakistan); K. Hovde (CommunityParticipation/NGOs Specialist, Consultant); I. Bokhari (Education, Consultant); and J. Malmborg(Architect, Consultant). S. Shakil (Aga Khan Education Services) assisted with specific aspects of projectcomponents in NA. The support during project preparation of the Aga Khan Development Network, theJapanese Policy and Human Resources Development Fund and the SAP Multi-Donor Support Unit isgratefully acknowledged. D. Ricks (SASED) provided invaluable support in the production of projectdocumentation. Project processing was supervised by M. Nishimizu (then Director, SAI), F. Ahmed(then Project Advisor and Acting Director, SAl) and B. Herz (then Chief, SAlPH). The peer reviewersfor the project were: W. Heneveld (LCSHD); V. Greaney (SASED); and C. Valdivieso (PRMGE).

ISLAMIC REPUBLIC OF PAKISTAN

NORTHERN EDUCATION PROJECT

Project and Credit Summary

Borrower: Islamic Republic of Pakistan

Implementing Agencies: Department of Education, Northern AreasDepartment of Education, Azad Jammu and KashmirNon-Governmental Organizations

Beneficiaries: Over one million elementary school age children residing inthe Northern Areas and Azad Jammu and Kashmir

Poverty Category: Program of Targeted Interventions. The areas covered by theproposed project are particularly poor and underserved. Theproject moreover places particular emphasis on girls'education.

Credit Amount: SDR 16.4 million (US$22.8 million equivalent)'

Terms: Standard, with 35 years maturity

Commitment Fee: Standard (a variable rate between 0% and 0.5% of theundisbursed credit balance set annually by the ExecutiveDirectors of IDA)

Onlending Terms: The Federal Government will make available the proceeds ofthe Credit to the Northern Areas and Azad Jammu andKashmir in accordance with its standard budgetary procedures.

Net Present Value: Not applicable

Financing Plan: See Tables 3.2 and 3.4 in body of report.

Project Identification Number: PK-PA-37834

Project Description: Pakistan's social indicators are considerably worse than most other comparablecountries. Northern Pakistan, comprising the Northern Areas (NA) and Azad Jammu and Kashmir(AJK), is particularly disadvantaged. Nearly four million people live in these regions, 90 percent inrural villages scattered over a vast area of exceptionally mountainous terrain. The NA are among the

1 British Department for International Development (DFID - formerly British ODA) has proposedfinancing a portion of project activities in the Northern Areas, amounting to approximately US$ 3.1 millionequivalent.

most backward areas in Pakistan in terms of educational indicators, particularly for girls. Thepercentage of school-age children in school (participation rate) is estimated to be 74 percent for boysand 35 percent for girls at the primary level, and 54 percent for boys and 18 percent for girls at themiddle levels. Access in AJK is much better, although girls still lag behind. The quality ofeducation, however, is poor in both regions: although there is little systematic information onlearning levels, both the NA and AJK fell below country averages on a recent test of mathematics andUrdu at the primary level. Nearly 58 percent of teachers in elementary schools in NA lack teachingcredentials; most teachers in both regions work simultaneously with several grades yet virtually nonehave any training in multigrade instruction or in the use of supporting materials. Low levels of non-salary recurrent spending have contributed to impoverished and structurally unsound classroomenvironments. More than 30 percent of schools in AJK are classified as "dangerous" or "shelterless."Management systems and skills are weak in both regions, and, until recently, community participationin the education system has been limited or non-existent.

The project would cover education from Katchi (kindergarten) to grade 8, with emphasis on theprimary years and girls' education. The project's main objectives are to: (a) improve the quality ofeducation in order to increase learning achievement and completion rates in elementary education; (b)increase access, equity and retention of students, particularly girls; (c) strengthen institutional capacityto manage and supervise education programs; and (d) encourage greater community and NGOparticipation. The project would follow a program approach, which requires agreements between theGovernment and The International Development Association (IDA) on the elementary educationpolicies, strategies, programs and budgets, including directions for reform, over the life of theproject. Statements of strategies and priorities were developed by both NA and AJK during thecourse of project preparation. Although priorities and strategies differ by region, common themesinclude: investments in teacher training, materials development, and the introduction of continuousassessment techniques; replacement of dangerous classrooms and construction of school buildings forcurrently shelterless schools, and (in the NA) community-run schools; upgrading of management toolsand skills; and commitment to increased community participation in school management issues.Project support would be linked to satisfactory implementation of the agreed program, and annualoperational plans and targets tied to annual reviews.

Benefits: The project would directly or indirectly benefit over one million children over the fiveyears of project implementation, through a combination of improvements in school quality and access.In the NA, it is expected that the project would expand overall enrollments at the elementary level byapproximately 28 percent over current levels and double the number of girls in school. An increasedlevel of literacy improves economic productivity and income-earning potential for both sexes; forgirls, literacy is known to have a positive effect on lowering population growth and infant mortality.Further benefits expected from the project include: (a) improvements in learning achievementthrough better trained teachers, more appropriate materials, and a more hospitable learningenvironment; (b) lower teacher absenteeism, improved school maintenance, and improved systemaccountability through community participation in school management; (c) a reduction in dropout rates(particularly for girls) and higher overall completion rates through a combination of improvements inthe learning environment, community sensitization and monitoring, the recruitment of femaleteachers, and improved access at the middle levels; (d) improved availability of qualified femaleteachers (in the NA); and (e) improvements in system management and resource allocation throughbetter information and planning practices and more qualified staff.

Risks: During preparation, an effort has been made to analyze and reduce project risks.Nevertheless, risks remain especially given the remoteness of the regions and their lack of experience

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with projects. The project faces risks related to (a) design; (b) implementation; (c) financialenvironment; and (d) political factors. With regard to project design, the heavy emphasis oncommunity participation presents both potential benefits and risks. Reliance on communityparticipation in construction may mean that construction moves more slowly. In AJK there is likelyto be substantial institutional resistance to meaningful community involvement in school affairs, whilein the NA the reliance on community schools as the principal means for increasing access to educationrisks overburdening communities and furthering inequities between the communities that cancontribute a lot, and those that can contribute very little to their children's education. The project hasattempted to mitigate these risks through the use of pilots, drawing on local expertise wheneverpossible, and supporting and further developing the community school program. While the risks stillexist, we believe the potential benefits outweigh them. The absence or poor quality of basic data inboth areas also means that estimates of system needs may be considerably off. The project design hasattempted to take this risk into account by adopting a more flexible approach with Annual Reviews.

Implementation risks include the executing agencies' relatively weak institutional capacity, little or noexperience with Bank procedures and managerial requirements, heavy internal bureaucracy, and thepossible turnover of key managers and staff. The project addresses the first two of these risksthrough keeping project components as simple as possible, relying whenever possible on locallyavailable expertise, strengthening critical Department of Education (DOE) departments or areas, andincluding technical assistance and training. While the project cannot change the Government's rulesof business, it seeks to avoid some levels of bureaucracy through dealing directly with the AJK andNA Governments as much as possible, rather than channelling everything though a federal levelcoordination unit. The last risk -- turnover of key managers and staff -- can without doubt have themost negative effects on project implementation. Actions taken or to be taken to reduce this riskinclude making sure the project is broadly discussed and supported within the existing institutions aspart of project preparation, planning for the provision of ongoing training and technical assistance,and using Annual Reviews as a forum for raising overall concerns with the Government.

The principal financial risk to the project is the possible deleterious effects of federal budget cutbackson overall budgetary allocations to the NA and AJK, and within these, specifically to education. ASocial Action Program (SAP)-type project is the logical framework for addressing these issues. Risksrelated to political factors include interference in site selection for construction of schools and inteacher appointments, as well as changes of Government, a possible flare-up of sectarian violence inthe NA, or a change in the overall status of AJK. The first of these two risks will be addressedthrough the use of school mapping results for the rational selection of school sites and through the useof merit-based criteria in the hiring of teachers. Over the remaining risks, of course, the project hasno control. Given the high priority of improving education in these neglected areas, the risks overallare considered acceptable.

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ISLAMIC REPUBLIC OF PAKISTAN

NORTHERN EDUCATION PROJECT

I. SECTORAL BACKGROUND AND ISSUES

A. Introduction

1.1 Pakistan's strong economic performance over the past two decades has contributed to asignificant reduction in poverty, as measured by consumption indicators. Many years of neglect ofthe social sectors, however, have led to social indicators that are considerably worse than most othercountries at similar levels of development.2 Only 35 percent of the population is estimated to beliterate, and there are wide gender disparities in education, health, and earnings potential. In 1991,only 46 percent of primary and 21 percent of secondary school-age children were estimated to beenrolled at the primary and secondary levels, respectively -- half the average enrollment rates for alllow-income countries. A population growth rate of 3 percent also threatens per capita consumptiongains and increases pressure for schooling. In an effort to redress the prior neglect of social services,the Federal Government in 1993 adopted a Social Action Programme (SAP), which is partially fundedwith assistance from donors, including IDA.

1.2 Northern Pakistan, consisting of the Northern Areas (NA) and Azad Jammu andKashmir (AJK), is particularly disadvantaged and has received a very small share of the country'sincreased wealth. Both areas remain overwhelmingly rural with limited access to communications androad infrastructure. Ninety-one percent of the NA's 0.8 million people live in rural areas, most insmall villages scattered over a vast area of exceptionally mountainous terrain. Eighty-nine percent ofAJK's approximately 3.5 million people also live in rural areas.4 Poverty is pervasive and access tobasic social services is often limited or unavailable. Infant and child mortality are significantly abovenational levels. Average annual income in Pakistan in 1991 was approximately Rs. 10,300, but onlyabout Rs.5,600 in NA and Rs.7,300 in AJK.5 With the exception of modest general supportthrough SAP, hardly any external donor assistance for the social sectors has reached these two remoteregions.

1.3 As in the rest of Pakistan, the provision of education in both the NA and AJK is dividedinto three main cycles: primary schools provide the entire primary cycle (grades K-5)6 ; middleschools provide both primary and middle (grades 6-8) cycles, and high schools provide primary,middle and secondary (grades 9-10) cycles. Government administration of the educational system also

2 Pakistan ranks 134 among the 174 countries for which the Human Development Index has been derived(UNDP 1996).

3 Behrman, Jere R., 1995.

4 Population figures are projected from the last census, which was 1981.

5 Punjab Economic Research Institute, 1992.

6 Grades and classes are used equivalently in this report.

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follows a similar pattern to the rest of the country, although there are important differences betweenAJK and the NA in terms of decision-making authority. Both areas have a central institution (theDirectorate of Education, in the case of the NA; the Department of Education in AJK) responsible forpolicy making and planning and district offices responsible for direct school supervision, datacollection, and some decisions on personnel (five district offices in the case of the NA, and seven inAJK7). Both the NA and AJK are also considered "special areas" within Pakistan and arerepresented at the federal level by the Ministry of Kashmir Affairs and Northern Areas and States andFrontier Regions (KANA/SAFRON). AJK has considerable autonomy in governmental affairs,however, including its own president and parliament, and the ability to sanction civil service posts(including teachers). The NA administration answers directly to the KANA/SAFRON Ministry,although a local council with limited political powers was authorized in 1994.

B. Overview of Education in the Northern Areas

1.4 The Northern Areas are among the most backward areas of Pakistan in terms ofeducational indicators. The literacy rate of 14.7 percent reported by the 1981 Census (24 percent formales and 3 percent for females) was well below the then national average of 26 percent. Enrollmentat the primary level covers just over half of school-age children, and girls enrollments seriously lagbehind those of boys. As of 1994, there were 50,799 boys and 23,228 girls enrolled in primaryschools, representing approximately 74 and 35 percent of the corresponding school-age population.8

At the middle level, these numbers were 15,832 boys and 4,989 girls, or approximately 54 percentand 18 percent of the corresponding school age population, respectively. These statistics, however,also mask significant inequalities between the five administrative districts. In Diamer district, forexample, girls' enrollment at the primary level is only about 14 percent of the corresponding school-age population (see Annex 1 for additional information on education statistics).

1.5 There is little objective information on learning levels in the NA, but the informationavailable suggests that the quality of education offered is extremely low. Existing Government examsfor grade 8 completers and matric (grade 10) level do not offer much information about true learninglevels, since tests can be passed through rote memorization and there are problems with the securityof test administration. The Aga Khan Education Service (AKESP), the largest NGO provider ofeducational services in the region, administers a screening test for potential teachers that is geared tomastery of approximately a grade 4 level of content. Failure rates for this exam are very high, evenfor holders of matric and higher certification. In mid-1995, the Multi-Donor Support Unit (MSU) forthe SAP program supported a national achievement survey of mathematics, general knowledge and

7 Two additional districts were created in AJK in late 1995. All statistical information presented on AJK inthis report, however, shows only the five original districts.

8 These numbers do not include data on private school. enrollments (other than AKESP) which are notavailable for 1994. According to 1992-93 data, however, private enrollments made up 5 percent of totalenrollments. It is likely, therefore, that the estimated participation figure for boys, in particular, is slightlyhigher, as boys' enrollment in private schools outstrips that of girls.

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comprehension among grade 5 students and teachers. Scores of both students and teachers in the NAwere the lowest in the nation, with girl students scoring the lowest of all.9

1.6 The Government is the largest provider of educational services in the NA, with directresponsibility for 782 schools (primary through high school), and about 84 percent of enrollments.'0

AKESP is the second largest provider, accounting for 126 schools and 16 percent of enrollment, but35 percent of female enrollment (all levels). AKESP schools originated as girls schools, althoughmany currently admit boys at the primary level. AKESP, however, only operates schools in two ofthe five administrative districts (Gilgit and Ghizer). The army and the private sector operate 52schools, the vast majority in Gilgit district (34). As of 1992-93, enrollment in independent privateschools was estimated at approximately five percent of total enrollments -- this percentage may haveincreased slightly over the past three years. While some are being run by small NGOs and "welfareorganizations," many are also run by private entrepreneurs on a for-profit basis.

1.7 Under the aegis of the SAP program, during 1995 the Government in cooperation withthe Aga Khan Rural Support Program (AKRSP) also sponsored the establishment of 250 "communityschools," distributed equally across the five districts. These schools are established in partnershipwith village organizations (VOs), which assume the responsibility of hiring a teacher, findingclassroom space, and overseeing the non-academic aspects of school administration. TheGovernment, in turn, sets up an account of Rs. 100,000 in the name of the school, the interest fromwhich (approximately Rs. 1,400 per month) pays the salary of the teacher. The Directorate ofEducation also retains responsibility for setting the criteria for teacher eligibility, and for academicsupervision. The vast majority of these schools have been established either as girls schools orcoeducational primary schools. Nearly half of the teachers hired through the program thus far arefemale, compared to the regular Government system where only 14 percent are female. As of early1996, enrollment in community schools stood at 12,088 students (about 16 percent of total primaryenrollment in 1994). " About 64 percent of community school enrollments were female.

C. Overview of Education in Azad Jammu and Kashmir

1.8 In contrast to the NA, literacy in AJK is estimated in 1995 to be at 43 percent of thepopulation, although only 12 percent for females. Access at the primary level is also comparativelygood, although enrollment of girls still lags behind that of boys. As of 1994-95, there were 231,851boys and 191,210 girls enrolled at the primary level, corresponding to approximately 101 percent and87 percent of the school-age populations."2 At the middle level, 74,715 boys and 42,203 girls were

9 The Northern Areas is the only region, in fact, in which girls scored lower than boys, reflecting theserious gender equity issues in the region.

10 1994 data. This breakdown of enrollments does not include information on private providers other thanAKESP.

11 Note that while the majority of these appear to be new enrollments, there clearly has also been someshifting in enrolLment between government, AKESP, and community schools. 1994 was therefore chosen as amore reliable base year for statistical monitoring purposes.

12 Note that AJK has a significant number of "under-age" children enrolled at the primary level, so actualcoverage rates are undoubtedly lower.

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enrolled, corresponding to approximately 75 percent and 44 percent of the corresponding school agepopulations. Participation rates appear to be fairly even across districts at the primary level, althoughthere are important differences at the middle level particularly for females.

1.9 AJK's relatively good record on access is the direct result of the AJK Government'sdecision to give high priority to the expansion of educational services over the past two decades. TheGovernment is overwhelmingly the largest provider of educational services, and is directly responsiblefor 5,669 schools (primary through high school), about 97 percent of primary enrollments, 87 percentof middle school enrollments, and 87 percent of high school enrollments. A small but growingprivate sector accounts for the remaining enrollments, and approximately 306 schools.'3 Most of theprivate schools are located in urban areas, and cater to the demands of high and middle-incomefamilies. Most are also coeducational, although boys enrollments greatly outstrip those of girls,which may be a reflection of families' priorities in the face of relatively high fees (the average fee isestimated to be about Rs.200 per month).

1.10 Despite AJK's achievements with regard to access, however, learning levels appear to beat or below national averages. In the recent MSU sponsored survey of student achievement amongclass five students and teachers, girls in AJK scored 52 percent and boys 48 percent, compared tonational averages of 62 percent and 59 percent.

D. Education Finance

1.11 Government spending on education has been extremely low in the NA and AJK. Lowhistorical spending in the NA has resulted in low literacy levels, poor education assets and lowstudent completion and achievement. The education sector expenditures in NA and AJK represent asmall part of the total Federal (GOP) expenditures -- only about one percent in 1995-96. Both areas,however, rely very heavily on GOP transfers for financing their expenditures. All funding for theNA -- both development and non-development, is allocated through the KANAISAFRON Ministry.The AJK government internally generated resources cover only 35 percent of its overall expenditureswhile GOP finances the other 65 percent. In 1995-96, allocations to education amounted to about 20and 24 percent of total public sector allocations in NA and AJK respectively (development and non-development).

1.12 During the past five years, education development expenditures have declined in AJK.Education Development Expenditures as a share of the Annual Development Plan (ADP) averaged14.0 percent in 1991-92 and are estimated at 8.4 percent in 1995-96. In the NA, elementaryeducation has received some support through the SAP budget. However, these funds representextremely small and insufficient amounts when compared with the sector's acute needs. Recurrentspending on the elementary level has lagged behind with net gains going to the secondary and higherlevels. Elementary Non-development (recurrent) Expenditures increased at an average annual rate of14.2 percent in the NA, while Secondary (and College) Non-Development Expenditures grew at anannual average rate of 16.7 percent. In AJK, Elementary Non-Development Expenditures increasedat an average rate of 8.6 percent, while College Non-Development Expenditures grew at an averageannual rate of 14.1 percent (for additional information on education finance, see Annex 2).

13 Enrollment percentages are based on data from the private schools association in Muzaffarabad and arerough estimates only.

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1.13 One of the most critical problems in the education recurrent expenditures is thedominance of the salary component. In AJK there are virtually no budgetary provisions for non-salary inputs, such as repairs, maintenance, instructional materials, and so on. Recently, a provisionof equipment (furniture, sports goods) amounting to Rs.35 million for 4,119 primary schools wasincluded in the ADP. One of the reasons for the high proportion of dangerous schools is thecombined effect of poor quality construction and inadequate allocation of funds for maintenance andrepairs. In the NA, non-salary inputs in the elementary education non-development expenditures haveincreased; while they represented on average 4.5 percent of elementary expenditures over the past fiveyears, non-salary inputs totalled approximately 12.0 percent of the elementary non-developmentallocations in 1995-96. This level of non-salary allocations needs to be sustained.

1.14 According to the best available estimates of parental expenditures on education, theparents of children in government-run primary schools spend approximately Rs.500-600 yearly onitems including school books, uniforms, supplies and a nominal monthly school fee (Rs.5). Studentsin AKESP schools pay an additional fee of Rs.50 per month. AKESP fees are kept low in large partthrough subsidization of the Aga Khan Foundation, and their schools also offer fee remission for low-income students. Independent private schools rely solely on tuition for operating expenses and theirfees tend to be quite high (Rs.200 per month or more).

E. Main Sector Issues

1.15 The major issues confronting the elementary education sub-sector in the NA and AJKinclude: (a) low quality of education and poor student achievement due to a combination of untrainedor poorly trained teachers, limited and/or inappropriate instructional materials and harsh physicalconditions; (b) limited access, particularly for girls; (c) low management capacity due to a lack ofreliable information, a shortage of trained and technical staff, and political constraints; and (d) limitedsystem accountability to parents and/or experience in mobilizing parents and community members insupport of education.

School Quality Issues

1.16 Physical Conditions of Schools. Inadequate design and lack of maintenance funds haveled to very poor physical conditions in the great majority of schools in both AJK and the NA. InAJK, out of a total of 5,228 Government schools, 661 have serious structural deficiencies renderingthem dangerous to children, and 1,126 are classified as "shelterless" -- either managing in a rented ordonated building not suited for the purpose or without any shelter whatsoever. In the NA, 267 outof 691 Government primary and middle schools are in need of interventions ranging from minorrepair work to reconstruction of existing buildings and construction of facilities for schools with nofacilities at all. In both AJK and the NA, most of the older Government schools have insufficientclassroom space. Newer schools have been built following a standard design that does not allow forclimatic differences between regions. Many schools have broken furniture, or no furniture at all,forcing students to squat on the floor. Very few schools have running water or sanitation, a factorthat has elsewhere been found to be important in the retention of girls.

1.17 Teachers and Teaching Practices. Teachers in both the NA and AJK work inextraordinarily difficult conditions. In addition to the poor physical conditions of schools, the vastmajority of teachers in both regions must singlehandedly cope with students spanning several gradesand age groups in one classroom, without materials other than a textbook. They must teach a range

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of subjects in Urdu (not their native language, nor that of their students), and are supposed to be ableto teach Arabic and more recently English as well. Many have had little academic training, and/or noformal teacher training, and for those that have, the standard teacher training often proves irrelevantto the realities of their teaching situation. For the majority of teachers, supervision or other academicsupport is infrequent, or non-existent. The result is that teachers' content knowledge and classroommanagement skills are generally poor. Often the lower grades are ignored or put under the charge ofan older student -- a practice that may exacerbate early dropout.

1.18 There are currently 1,547 teachers teaching in Government-run primary and middleschools in the NA, the vast majority ef whom (86 percent) are male.'4 Many lack teachingcredentials appropriate to the level at which they teach. Only 44 percent of primary teachers in theGovernment system hold the Primary Teaching Certificate (PTC), while 11 percent of primary and 36percent of intermediate teachers have not attained the requisite levels of academic education, whichare "matriculation" following grade 10 for primary teachers and senior secondary completion (grade12) or its equivalent for middle school teachers."5 In view of the evidence that parents are oftenmore willing to send girls to primary schools where the teacher is female, the predominance of maleteachers is a problem. The NA administration has been actively promoting the hiring of femaleteachers for community schools through the SAP program: about 50 percent of teachers hired underthe program thus far are female. In a number of cases, however, the Directorate of Education hashad to relax academic and training standards for community school appointments -- very fewcommunity school teachers have had any formal teacher training.

1.19 Three main factors mitigate against increasing the educational and training levels ofcurrent and future teachers in the NA: (a) the supply of training places; (b) the scarcity of teachers inthe system; and (c) for women, constraints on travel as well as access to middle and higher education.There is currently one College of Education for men located in Gilgit, while a small female "college"operates in a rented building as an unsanctioned branch of the male college without hostel facilities.With a theoretical total capacity of around 200 trainees per year, the current college based systemcannot begin to meet the needs for teacher training. The Directorate of Education and AKESP alsohave collaborated over the last 12 years in running a relatively low-cost and well-regarded FieldBased Teacher Development (FBTD) program. The FBTD Program is particularly beneficial forfemale teachers, as it obviates the need for dislocation from the family and community, but under thecurrent model capacity is also very limited. The small number of teachers in the Government systemalso constrains the utilization of training capacity as with few substitute teachers available, supervisorsare understandably reluctant to release in-service teachers for a year long training course.'6

14 An additional 460 posts (primary through high school levels) were sanctioned as of early 1996, but theseposts have yet to be filled.

15 Academic preparation may in fact be worse than these statistics suggest, as it is possible to sit for thematriculation exam as a "private candidate" without actually having completed grade 10. Given problems withthe design and security of the matriculation exam, it is possible for candidates with very low levels of contentknowledge to pass it.

16 Note that until 1995, no additional teaching posts had been authorized for the NA since 1986, despite anoverall increase in enrollment and the building of a number of new schools.

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1.20 In contrast to the NA, the much larger teaching force in AJK is better balanced in termsof gender and has higher formal qualifications. Male teachers represent about 61 percent of a total of11,451 teachers at the primary level, and 64 percent of a total of 5,596 at the middle level. Thereis, however, an imbalance between males and females with regard to training: 37 percent of femaleteachers in primary schools are untrained, compared with 8 percent of males, while in middle schoolsthe percentages of untrained teachers are 22 percent for females and only 12 percent for males. Thereasons behind this large gap are unclear, although the greater difficulty for female teachers to attendlengthy teacher training courses far from home may be part of the explanation.

1.21 AJK has a very large system of college-based certification training for elementary schoolteachers, at the same time as it has almost no capacity for in-service/refresher training. Ten ofPakistan's 90 Government Colleges of Elementary Training are in AJK, with one male and onefemale teacher training college in each of five administrative districts (two more districts haverecently been established in AJK). The theoretical capacity of these 10 colleges is 1,000-1,500graduates (PTC and Certificate of Teaching (CT)) per year, far more than the system can absorb orjustify on the basis of current student-teacher and gross enrollment ratios. In addition, there are anAgro-Technical College (for male primary teachers), a College of Education (for male secondaryteachers) and the Institute for Teacher Training and Research in the district of Poonch. As in theNA, the quality of teacher training in AJK is poor; colleges have few resources beyond staff, andcourses are geared far more towards passing theoretically-biassed certification exams than towardsimproving content mastery and practical teaching skills. A limited amount of in-service training inthe form of short "refresher" courses has functioned sporadically through the Education ExtensionCenter (EEC) founded in 1981, but the EEC has never had sufficient funds, staff, or expertise todevelop into an institution capable of planning and coordinating in-service training on a more systemicbasis.

1.22 Curriculum and Educational Materials. Like the rest of Pakistan, both AJK and the NAfollow the broad outlines of the curriculum defined by the Federal Ministry of Education. Theprovinces and regions do have some autonomy, however, in further defining learning competenciesthat are expected to be mastered at each grade level. Neither AJK nor the NA has thus far made anattempt to define such competencies, which in turn would serve to guide materials development,teacher training programs and assessment activities. In practice, changes in curriculum, teachertraining, and materials development have been quite disjointed: AJK, for example, recentlyintroduced the teaching of English as a compulsory subject from grade 1 despite the fact that the vastmajority of primary school teachers in the system have no training in English as a Second language(ESL) or language teaching in general. Both AJK and the NA participated in a UNICEF-fundednational program which promoted an integrated curriculum and local textbook development for gradesone to three. The books developed under this program are now in use in AJK and one district of theNA, although there has been little reliable evaluation of their impact and very little training ofteachers in their use. UNICEF funding for the project ended in 1993.

1.23 From a practical standpoint, the textbooks used in the classroom in effect become thecurriculum. Parents are responsible for purchasing textbooks, and distribution of textbooks is done inboth the NA and AJK by private distributors. This system appears to be working well. Separateteaching guides have been developed in the NA through the joint Government/AKESP FBTDProgram and by the Government in AJK for the new integrated textbooks, but few teachers appear tohave them or be using them. The Northern Areas FBTD Program does train teachers to develop low-cost materials themselves, but this area of training is very underemphasized in the college-based

8

training in both regions. Prior to the development of the integrated textbooks (for grades 1-3 in AJKand grades 1-2 in the NA) both regions used the textbooks developed by the Punjab Textbook Boardfor all grades. These textbooks continue to be used in most of the NA, and from grade 3 on in AJK.The books are not designed to support specific local minimum competency levels, and most containcultural and other references alien to Northern Pakistan which in some instances may make them lesseffective as teaching/learning tools. Nor are materials (textbooks or others) incorporating multigradeteaching techniques available in either the NA or AJK.

1.24 Assessment of Student Learning. There are currently four main types of assessment inAJK and the NA: (a) examinations that determine grade-wise promotion; (b) middle and high schoolentrance exams (largely in AJK); (c) PTC and CT certification examinations; and (d) classroom-baseddiagnostic assessment. No institutionalized form of achievement testing currently exists in either theNA or AJK, or, indeed, Pakistan at large. With regard to promotion, both areas rely largely onsingle, year-end examinations to determine students' success or failure in each grade of elementaryschool. The grade 10 exam (matric) is set nationally; all others are set locally. This "pass/fail"system of examinations is not only unfair to students, but it provides no diagnostic feedback toteachers. Effective teaching requires not only that students are given more opportunities to provethemselves, but also that teachers learn and use skills for continuous assessment which providesfeedback on their own effectiveness. Most diagnostic assessment currently is teacher-dependent andappears to consist of informal checks on students and practice in the prevailing end-of-the-year examstyle with a great deal of emphasis on memorization. The teacher training curriculum includes a uniton examinations, but teacher educators consider it inadequate preparation for the purpose. All typesof high-stakes exams are characterized by serious questions about their validity, reliability andsecurity.

1.25 With regard to teacher certification exams, both AIK and the NA hold local authority forconstructing and administering the PTC and CT examinations. In the NA, the exams are set by theCollege of Education, while in AJK, the exam setting authority has recently been moved from thecolleges of education to the Examinations Board, in part to counteract abuses. Pass rates for examsare very high, and at least in the NA are considered "too theoretical," giving much higher weight toacademic than to practical knowledge. Effective transformation of teacher training will necessitaterevision of the certification exams to reflect the new principles on which teacher training is based.

Access, Equity and Efficiency

1.26 Access. Access is clearly a major problem in the NA. Extreme topography andweather as well as transport problems make it difficult for children to travel even relatively shortdistances from home to school. The very low participation rates also appear to reflect more of asupply than a demand constraint. Whereas AJK is permitted to, and did appoint, new teachers (manyhave gone to teach in shelterless schools), in the NA no new teachers were appointed from 1986-1995. In the NA, with agriculture no longer able to sustain a growing population and the KarakoramHighway beginning to open up other economic opportunities, the demand for education is growing.In a recent AKRSP survey of communities' investment priorities, education consistently appeared ator near the top of the list, and pressure to upgrade existing primary schools to middle level has beenintense. The Government's recent experience with the applications for funding of community schoolshas also served to dispel a number of myths regarding parents' willingness to educate girls: even insome of the most traditional areas (Diamer district, for example), communities have come forward

9

with requests to establish primary schools for girls, and there is increased willingness elsewhere topermit co-education at the primary level, particularly if the teacher is female.

1.27 Although less dramatic a problem than in the NA, access is also still a problem in AJK,particularly for girls. Fewer girls than boys enroll in Katchi (kindergarten) class. While it is possiblethat lower levels of enrollment for girls may reflect a parental preference for educating boys,particularly among the very poor, it is likely that these statistics also reflect the smaller number ofgirls' schools at the primary level. There are also fewer girls' schools than boys schools at themiddle and high school levels, and student/teacher ratios for girls' primary schools are also higherthan those of boys' schools (42:3 versus 33:5).

1.28 Equity. The main equity issue in both the NA and AJK is that of gender, and thediscrepancies between male and female participation rates, as well as teachers. Particularly in theNA, however, there are also problems of equity between districts. The long-term presence of AKESPin Gilgit and Ghizer districts, for example, has offered opportunities for girls' schooling which havebeen lacking in other districts. There are also inequities in both AJK and the NA in the distributionof education resources between urban and rural areas. Urban schools tend to be better supplied andstaffed than their rural counterparts.

1.29 Efficiency. Both the NA and AJK educational systems have a certain amount of "built-in" inefficiency through the existence of very small schools (less than 20 students) in some of therural areas (such schools make up about six percent of schools in the NA). In theory, inequity aswell as inefficiency could be alleviated by having girls and boys within the same village attend thesame school, instead of separate boys and girls' schools. In practice, however, the successfulimplementation of such a policy depends upon prevailing cultural norms. In the NA, for example,co-education at the primary level is increasingly accepted in most districts, particularly if the teacheris female. The Directorate of Education in the NA has been encouraging co-education at the primarylevel, although it has permitted communities to open separate girls schools where the idea is stillunacceptable. In AJK, separate schooling has been the norm, although there is some willingness toconsider mixed schooling at the primary level in the future.

1.30 The internal efficiency of the educational system also appears to be low. Althoughneither the NA or AJK collect systematic data on repetition and dropout, rough estimates indicate thatin AJK at least, there is a bottleneck in the transition from Katchi class to grade 1. Steady dropoutand/or repetition continues through primary school at an average of about seven percent of the studentpopulation in subsequent grades. In the NA, the estimated percentage of dropout/repetition per gradeis lower on average for boys (five percent) but much higher for girls (about 11 percent). A secondimportant bottleneck in both the NA and AJK appears in the transition of girls from grade 5 (primary)to grade 6 (middle). This second bottleneck reflects either parental unwillingness to send daughterslonger distances to middle schools or the simple lack of availability of middle schools for girls, aswell as cultural (early marriage) and economic (the relative tradeoffs between education and homelabor) factors.

Institutional and Managerial Issues

1.31 Lack of Information for Planning. Educational planning in both AJK and the NA suffersfrom deficiencies common in much of the rest of the country. Decisions are often made in theabsence of relevant information or analysis either because: (a) the information is not available at all,

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or not available in an accessible format; and/or (b) the decision maker does not have sufficienttraining to comfortably use the information that is available, or request additional information whenneeded; and/or (c) even if the relevant information were clear and available, other pressures(including political ones) take precedence. As in many places, education system information alsooften moves in a single direction from the school to the central level, with collection done because itis required and not because it is useful. With little or no feedback and few incentives for accuratedata collection the quality of the data collected is poor.

1.32 Under the general guidance of the Federal Academy for Educational Planning andManagement, both the NA and AJK have installed fledgling Education Management InformationSystems (EMIS). In the NA, this consists of a central unit of three people that is so ill-equipped andill-trained that it is essentially non-functional.'7 In AJK, things have progressed a bit further. Thecentral unit has managed to construct a data base covering a selection of basic education statistics forthe past three years, and data entry has been done at the district, as well as the central level. Thedata being collected, however, is exclusively that mandated by the federal Government and does notinclude additional information useful to the running of AJK's own system. Nor has any of the datacollected in AJK been thus far verified for accuracy.

1.33 Both AJK and the NA also lack some crucial baseline data. Neither village-levelpopulation estimates nor inter-school distance coordinates are available, making it enormously difficultto ensure adequate site selection for the building or expansion of schools. Neither AJK nor the NAcollect data on repetition and dropout rates, and there is no information available on studentachievement other than the recent results of a general test (not geared specifically to AJK or the NA)sponsored as part of SAP monitoring activities.

1.34 Shortage of Technical and Female Staff. Although their overall staffing situations arequite different, both the NA and AJK lack expertise and trained staff in a number of important areas.T'hese include educational planning, curriculum and materials development, student assessmenttechniques, computer systems and programming, and school construction. In the NA in particular,most technical functions have been carried out at the central level by one or two staff, with helpprovided by staff seconded most often from high schools. Projects such as the development of theintegrated textbooks for grades 1 and 2 have been done through volunteer committees. The advantageto this model is diminished bureaucracy and a willingness to work with whomever is interested andwilling; the disadvantage is lack of continuity and an inevitable lack of specialization. Even in AJKwhere the educational system is much larger and more established, the Curriculum ResearchDevelopment Center (CRDC) which does materials development is a two-person operation, and theDepartment of Education has had trouble filling positions and keeping system analysts andprogrammers for the EMIS cell.

1.35 With regard to female administrative staff, AJK and the NA stand far apart. AJK doeshave a cadre of female administrators, although there are far fewer than their male counterparts.There are very few women in direct supervisory positions, which means that most girls schools andfemale teachers are supervised by men. The NA, in contrast, currently have no female staff

17 The Federal Education Management Information System (FEDEMIS)'s own collection of data in the NAhas also been badly flawed in recent years. The 1994 round of data collection, for example, was done inJanuary when schools were closed and many villages inaccessible.

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employed in administrative or supervisory positions other than the headmistress of the female Collegeof Education.

1.36 Inadequate Supervision. Academic supervision of schools is hampered by a combinationof the long distances between schools, difficult transport conditions, a high ratio of schools tosupervisory staff at the district level, and a culture in which supervision is viewed as more of aninspection than a guidance function. Most schools are visited a maximum of twice a year, often forno more than two hours at a time. These visits are for the most part a formality in which educationalissues are very seldom discussed, or are occasionally made in order to inquire into a complaint.Institutional incentive structures are also such that supervisors are for the most part former highschool teachers, many of whom may never have taught at the primary level or have not done so inmany years.

1.37 Inefficient Allocation of Resources. Inefficient allocation of resources is a far greaterproblem in AJK than in the NA, doubtless in part because the educational system in the NA hashistorically been so resource-poor. Many of the problems identified center on the issue of staffing.For example, although AJK has a reasonably good overall student/teacher ratio at the primary level,many schools, particularly in the rural areas, have overcrowded classrooms with a single teacherwhile urban schools tend to have a much more favorable student/teacher ratio. This is largely aproblem of the distribution of the teaching staff, and the difficulties accompanying the transfer ofteachers to far-flung areas where they face additional difficulties in housing and transport. Politicalconnections have often been viewed as outweighing professional qualifications in the appointment ofteachers. Another major area of waste is in teacher training. As mentioned earlier, there is fairlyclear evidence that AJK has a surfeit of trained teachers and overcapacity in the teacher trainingcolleges. In a major recruitment of primary teachers in 1988, 25,000 people applied for 1,500 posts.Of these, about 10 percent, or 2,500 already held teaching credentials.

1.38 Recently, the AJK Government has taken some important steps towards improvingefficiency in resource allocation. In the hiring of 500 new teachers in late 1995, for example, theGovernment committed itself to hiring new teachers on the basis of merit (with academic andprofessional qualifications carrying specific weight in a point system). This action has receivedwidespread commendation. The Government has also begun a slow phase out of Government-subsidization of upgrading of professional credentials, and has taken preliminary steps to reassign asurfeit of posts for "teachers in training" in the teacher training colleges back into the elementaryschools.

Community Participation and Links with NGOs

1.39 The NA and AJK differ markedly in regard to levels of community organization andexperience with NGO/Government cooperation. In the NA, AKESP and the Directorate of Educationhave traditionally shared information and coordinated activities and investments in the Gilgit andGhizer districts, particularly in regard to teacher training. Implementation of the SAP program in theNA is also characterized by a high degree of cooperation between the Government and the Aga KhanDevelopment Network (AKDN) (consisting of four organizations dedicated to health, education,community organizing, and housing). AKRSP has a 15-year history of community organizingthrough the establishment of village organizations (VOs) in all five districts, and was instrumental inthe design the community schools model. This program is currently one of the most interesting and

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ambitious models for community-Government partnership in education in Pakistan (see also Annex 3on Community Participation and NGOs in the NA and AJK).

1.40 In AJK, in contrast, the NGO sector is far less developed, consisting for the most partof small "welfare organizations" working on issues ranging from promoting activities for youth tosome health and literacy work. With the possible exception of health, there has been little experienceof cooperation between NGOs and Government agencies. While communities in AJK have supportededucation for their children in a variety of ways (including the donation of buildings to "shelterless"schools), such support has usually been provided on an ad-hoc basis, and there are currently noformal mechanisms for direct parental and community input into schooling issues.

F. Government and Donor Strategies in Basic Education

1.41 The two central problems with Pakistan's education system as a whole are the lowproportion of girls in school and the poor quality of basic education as reflected in the widespreadlow achievements of children who do go to primary school. Government and donor spending oneducation has thus far managed to expand education facilities, but has been less successful inimproving quality. The current challenge facing both the government and donors is how to make asubstantial change in education quality, while at the same time maintaining progress towards universalelementary education. IDA's own operational strategy in education has moved from discrete, input-oriented projects towards an increased emphasis on policy reform, institutional development,management, and governance issues, measures to expand the numbers of girls in school, and findingmeans to expand public sector support for communities and NGOs. The federal Government's mainfunding and policy instrument for basic education is currently the Social Action Program, or SAP.The SAP has evolved into a framework for action to improve the planning, programming, budgetingand implementation of all on-going and new programs and projects in the social sectors, with anemphasis on the integration of donor inputs. The SAP is supported by IDA and other donors throughan umbrella policy-based Social Action Program Project (SAPP) for FY94/96 to cover basic servicesin health, education, population, and water and sanitation.'8 SAPP concentrates on the major issuesof program design, implementation and particularly recurrent cost funding that cut across the socialsectors. In education, SAPP has generally bolstered recurrent and development spending on primaryeducation, and has provided leverage on a number of general policy issues, such as increases ineducational coverage for girls and improvements in educational monitoring systems. SAPP retainsessentially a national and macro focus, however, and is not, as a single instrument, well suited tosupporting provincial or area-specific initiatives and reforms. To complement SAPP, the Governmentand donors (including IDA) are also supporting provincial-level education projects in all four ofPakistan's provinces.

1.42 At the level of the NA and AJK Governments, proposals to address the education sectorissues outlined above are contained in statements of educational priorities and strategies developed byeach administration during project preparation (see Annexes 4 and 5). These statements are a firstattempt to articulate regional priorities within the education sector and broadly reflect discussions heldbetween policy makers, a wide range of Department and Directorate of Education (DOE) staff,teachers, NGOs, and other stakeholders during project preparation workshops held in each region.

18 Pakistan Social Action Program Project, Credit No. 2593-PAK, approved in March 1994. A follow-onproject, SAPP II, is currently being prepared.

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Details of the policy agenda vary somewhat between the two regions (given the different stages ofdevelopment of the educational systems), but key aspects of each include, for the NA: (a) continuedpriority given to expanding access for girls, and to the preparation and hiring of female staff; (b)efforts to improve the quality of existing schools through staff training and infrastructureimprovements; and (c) strengthening existing partnerships with communities and NGOs. In AJK, keyaspects include: (a) prioritization of quality improvements at the elementary level; (b) progress inrationalization of staff hiring, deployment, and training policies; and (c) efforts to promote increasedcommunity participation in education. An important element to both regions' strategies would becommitment to increase non-salary recurrent expenditures.

G. IDA Strategy and Rationale for Project Investment

1.43 Northern Pakistan is an area where the needs are great, but which has received littledonor attention in the past. The project is fully consistent with the Country Assistance Strategydiscussed by the Board on December 19, 1995, and reviewed on April 19, 1997, particularly in itsemphasis on improving conditions for rural women and girls. As occurs in the other Provinces, theproposed project would also help complement, support, and inform the work of SAPP. Because AJKand the NA are still technically considered "disputed areas," many donors are not permitted by theirown rules to consider investments there. IDA funding can therefore help fill a void. Through workin support of elementary education in the four Provinces of Pakistan, IDA is also in a relativelystrong position to ensure that lessons (both positive and negative) learned in other projects are madeavailable to the NA and AJK. Finally, both AJK and the NA are at stages in the development oftheir educational systems where IDA support could make a significant difference: in AJK,consolidating already impressive advances in access with improvements in system quality, equity, andmanagement; and in the NA, supporting an innovative effort to expand educational access incooperation with the community and NGOs.

H. Lessons from Experience

1.44 The main lessons from sector work in education and project experience in Pakistan aswell as other countries have been incorporated into the project. These lessons are outlined below:

1.45 Regional Focus. Past projects involving a Federal Coordinating Unit and multipleprovinces (such as Primary Education II), have experienced serious implementation delays, largelydue to the adding of bureaucratic layers whereas the provinces are legislatively and financiallyresponsible for elementary education. Although the federal Government does have a more direct rolein the NA than in AJK or other provinces, the project attempts to reduce bureaucratic delays bymaking regional agencies responsible for implementation and avoiding the creation of a separate,federal level coordinating unit. As with all other projects, federal ministries would, however, be keptinformed of project progress (principally the Ministry of Education and the KANA/SAFRONMinistry).

1.46 Education of Girls. Several studies and surveys in Pakistan have confirmed thebeneficial impact of female education on the total fertility rate, infant and child mortality, childimmunization rates, nutritional status and children's school attendance.

1.47 Program Management. Experience under several projects has shown that projectmanagement structures established outside the normal administrative hierarchy of provincial or

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regional Departments of Education fail to institutionalize gains into the regular system. The projecthas therefore opted against the setting-up of a specialized Project Implementation Unit (PIU), and hasadopted a more programmatic approach to minimize the burdens of "special" project monitoring.

1.48 Technical Assistance. A strong technical assistance package has proven to be a crucialfactor in the relatively good implementation progress of several recent projects (notably theBalochistan Primary Education Project), particularly where the choice has been made to strengthen theexisting system rather than establish a project implementation unit (PIU). The project will supportboth short and longer-term TA packages in both the NA and AJK.

1.49 Annual Reviews. Annual reviews have become a tool for successful planning andimplementation reviews under both the SAPP and other social sector projects. The annual review setsrealistic targets for the following year based on implementation records of the past year. In otherprojects, rigid adherence to PC-1 targets established at project appraisal have become a majorconstraint to implementation; these targets are often outdated, and do not reflect the changing realitiesor needs that may arise over time. Annual reviews under the proposed project would also permitcoordination with future SAP reviews.

1.50 School Site Selection. One of the most intractable problems in school construction is theselection and approval of sites. School mapping exercises and use of EMIS systems to verify school-site selection criteria has begun to improve the situation in several recent projects, away from theinterference of politics. Agreement by both the NA and AJK Governments to conduct a schoolmapping exercise and use the resulting information as the basis for school site selection is animportant aspect of the proposed project.

1.51 Community Participation. Both international research in education and recent sectorwork in Pakistan have shown that community participation in school management can have a positiveeffect on learning outcomes as well as on project sustainability. The proposed project incorporatessubstantial community participation in the NA, and in AJK supports a pilot experiment to promotecommunity participation.

1.52 Teacher Training and Materials Provision. Research in Pakistan has shown thatcertification of teachers appears to make little difference with regard to students' achievement levels,while higher academic attainment of teachers contributes positively to learning achievement. Clearlythese results are in part a reflection of the very poor quality of teacher training. While the proposedproject does support certification (which is important to teachers), it also attempts to influence teachertraining content and methodologies to bolster basic skills (including academic). With regard tomaterials provision, the main emphasis in this project would be on improving the teaching toolteachers are most familiar with -- the textbook.

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II. THE PROJECT

A. Project Approach and Objectives

2.1 As with other recent IDA-funded social sector projects in Pakistan, the proposed projectwould follow a "program approach." This approach requires an agreement between the Government,IDA, and any other donors on the overall sector policies and strategies, including directions forreform, during the life of the project."9 In both the NA and AJK, the agreed program wouldcomprise the full range of activities in the elementary education sector, complementing the increasedcommunity and NGO involvement in the provision and improvement of elementary schooling.Program activities, implementation plans, monitoring indicators and budget requirements for both theNA and AJK are consistent with the regional statements of educational priorities and strategies, andhave been discussed between the regional Governments, federal Government, and IDA. Theproposed project would support all incremental activities in the elementary sector, on a time-slicebasis. The proposed project would operate under the umbrella of the national SAP, with the detailedproject work in each region contributing to the development of broad SAP annual plans. SAPconditionality, financing and disbursements would be complementary to those for the project.Satisfactory progress on the FY1997-98 SAP operational plan was a condition of Board Presentationwhich was fulfilled at Negotiations (para. 5.2(p)).

2.2 Project support would be linked to satisfactory implementation of the agreed programand annual operational plans and targets tied to annual reviews. Each year, progress made during theprevious year would be reviewed, and the education sector program for the coming financial year (interms of budget requirements, reform measures to be implemented, and schedule of activities) will bedefined in detail. IDA would need to have seen adequate progress during the previous year, ensurecompliance with any overarching SAP agreements and approve each annual plan before releasingproject funds for that year. With this approach, the Governments should have more flexibility inimplementing the program than through a more traditional project approach, but they will beresponsible for meeting performance targets in order to receive annual funding. Agreement that: (a)annual sub-programs would be prepared and agreed with IDA, covering both Government and non-government inputs, activities, policy reforms and financial commitments; and (b) any major proposedchange to the approved program would be agreed in advance with IDA was reached at Negotiations(para. 5.2(b)). IDA approval of each sub-program will be a condition of disbursement for the projectin both the NA and AJK (para. 5.3(b)).

2.3 The proposed Northern Education Project (NEP) would cover education from Katchi tograde 8, with emphasis on the primary years and on girls' education. The project's objectives are:(a) to improve the quality of education, increase learning achievement and improve completion ratesin elementary education; (b) to increase access, equity, and retention of students, particularly girls; (c)to strengthen institutional capacity to plan and manage educational programs; and (d) to encouragegreater community and NGO participation. Operational indicators to be used to track progress on

19 The British Department for International Development (DFID - formerly ODA) has proposed to financeselected program activities in the NA as part of the Northern Education Project (NEP). Please see Chapter IIIof this report for additional details.

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these objectives are presented in Annex 6. The project's overall objectives are the same for both theNA and AJK, although the project would place more or less emphasis on the different objectivesaccording to local circumstances and the priorities set forth in the statements of educational prioritiesand strategies for each region. Prior to Negotiations, final and formally approved copies of thestatements of educational priorities and strategies dated August, 1996 were provided to IDA (para.5.1 (a)), and adherence to these statements was confirmed during Negotiations (para. 5.2(a)).

B. Project Description

2.4 The project would consist of four main components: (a) Improving Education Quality(US$8.2 million equivalent; 25 percent of base costs); (b) Increasing Equitable Access (US$16.3million equivalent; 50 percent of base costs); (c) Strengthening Institutional Capacity (US$4.4 millionequivalent; 13 percent of base costs); and (d) Community Participation (US$3.8 million equivalent; 12percent of base costs).

Improving Education Quality

2.5 This component would support policy changes, strategies and activities designed toimprove educational quality, including: (a) changes in teacher recruitment and training; (b)curriculum and educational materials development; and (c) the development of assessment capacity.While described separately, these three subcomponents are all interrelated and interdependent.

(a) Teacher Training

2.6 Teacher training initiatives would differ for the NA and AJK, reflecting the areas'different needs. In the NA, the priority strategies would focus on meeting the basic training andcertification needs of brand new teachers and a tremendous backlog of untrained teachers as well aslonger term investments to expand the potential pool of teachers, particularly women. In AJK, theproject would emphasize updating the skills and content knowledge of teachers already in theclassroom through the establishment of an in-service (INSET) training capacity.

2.7 In the NA, the project would support an expansion of the joint Government-AKESPFBTD program as well as college-based training. The FBTD program is a ten-year-old, intensive,practicum based program for increasing teachers' content knowledge and broadening their base ofpedagogical skills. The fundamental aim is to improve teaching, rather than to award credentials.Many uncertified teachers, however, have attained their teaching credentials as "private candidates"for certification exams, following the completion of FBTD. Under the project approximately 2,140Government and community school teachers would be trained under the FBTD program, through acombination of AKESP and Government-run centers.

2.8 With regard to expanding professional, academic and training opportunities for womenin the NA, the project would support the construction, equipping, and staffing of two femaleelementary colleges of education, one in Gilgit, and one in Skardu, as well as existing non-formal anddistance education strategies. The colleges would have a combined capacity of approximately 150students and would have hostel facilities. They would be expected to be fully operational by the1999/2000 academic year. Approximately 1,600 teachers would be expected to be trained by the new

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and existing colleges of education over the life of the project.20 Given the acute shortage of girls'secondary schools in the NA, the project would also support an existing low-cost strategy forimproving academic levels for girls through the distance education program developed by AllamnaIqbal Open University (AIOU). The AIOU program provides self-study materials for middle andhigh school students through local centers.

2.9 As a corollary to efforts to improve the availability of female teachers, the NAGovernment would also be expected to continue the current policy of promoting the recruitment offemale teachers at the primary level, both in regular Government and community schools. Under thecurrent community schools program, communities must appoint a female teacher if there is a qualifiedfemale available in the village.

2.10 In AJK, given the current over-capacity in the college-based teacher training system, theproject would support policy changes to improve resource allocation and management, as well as theestablishment of an in-service training capacity. Relevant policy changes would include: (a) effortsto give more control to principals of the teacher training colleges with regard to the selection ofteachers and students; (b) measures to identify and provide training opportunities to remaininguntrained teachers and a gradual phase-out of Government-paid "on-service" PTC and CT training inthe teacher training colleges2"; (c) reallocation of "excess" posts away from the teacher trainingcolleges back into the regular system; and (d) continued Government commitment to the appointmentand promotion of teachers on a strictly merit basis.22

2.11 Recognizing that teachers and educational administrators require recurring opportunitiesto update their knowledge and skills, the project would also support the development of acomprehensive and flexible system for short (two-day to two-week) in-service "refresher" courses inAJK, under the auspices of the Educational Extension Center (EEC). The first priority of the EECwould be to provide two-week courses on teaching the Integrated Curriculum, to all primary schoolteachers. These courses would be offered at the teacher training colleges during summer holidays. Inaccordance with capacity, the EEC would develop and provide specialized courses in English,Mathematics, continuous assessment techniques, multigrade teaching strategies, and other identifiedneeds of elementary school teachers. The EEC would also provide some training in academic andmanagerial subjects to administrative staff.

20 The project would also support investments in books, materials and teacher training in the existing maleCollege of Education to complement investments made on the female side.

21 "On-service" training is used to distinquish college-based PTC and CT (pre-service) training is used todistinguish college-based PTC and CT (pre-service) training for teachers that already have government teachingpositions. "In-service" training in this report is selected, usually short-term training offered to already certifiedteachers.

22 Given the poor quality of pre-service training currently in AJK and the fact that there will be acontinued need for some pre-service training, there is clearly scope for investments in quality improvements fora sub-set of the teacher training colleges (GCETs). Given overall cuts to this project, it was not possible tofund such investments. This is an area that could conceivably be supported through SAP financing.

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(b) Curriculum and Materials Development

2.12 The project would support similar strategies in both the NA and AJK with regard tocurriculum and educational materials development, although the choice, phasing and implementationof activities would vary in accordance with current institutional capacity. The main thrust of thisstrategy would be to strengthen local capacity for textbook and materials development, in order toensure that elementary education in both regions is conveyed through well-designed and locallyrelevant textbooks, and that a wider variety of learning materials are available and used inelementary classrooms. Common components of this strategy would include: (a) development of listsof learning competencies by grade-level, which would in turn guide the materials development,teacher training, and assessment activities; (b) revision and gradual introduction of existing locallydeveloped textbooks; (c) development of textbooks for additional grades (as feasible); (d) developmentof teacher materials with specific purposes, such as support of multigrade materials and/ordevelopment and use of low-cost teaching aids; and (e) the provision of some supplemental learningmaterials to schools (in conjunction with teacher training efforts).

2.13 In the NA, where there is limited experience with textbook design, the project wouldsupport the continuation of activities begun under the UNICEF integrated curriculum project.Textbooks developed for grades one and two would be revised, and additional textbooks andannotated teachers' guides would be developed for grades three, and as implementation capacitypermits, grades four and five. In AJK, where there is greater institutional capacity, it is expected thattextbook development could proceed through grade eight. The Curriculum Research DevelopmentCenter (CRDC) in AJK would also undertake field-based research on teaching/learning practices inthe elementary schools. In order to facilitate the work of the CRDC and EEC, the project wouldsupport the construction of a new office building to be shared by both agencies.

(c) Assessment

2.14 The overall lack of technical expertise in student assessment calls for investments intraining and technical assistance in both the NA and AJK. In both areas, there would be two mainfoci to assessment activities: (a) baseline and end-of-project achievement testing; and (b) introductionof continuous assessment concepts and practices to teacher trainers and curriculum developers. Thefirst activity would form an integral part of program/project monitoring and evaluation. A criterion-referenced test of mathematics and Urdu competency would be developed and administered to asample of grade four students at the end of the first program year, and a comparable test would beadministered in the final year of the program to determine whether measurable improvements instudent learning have been made during the intervening period. Tests would be based on learningcompetency lists developed for grades one to three. As this form of testing is complex and relativelynew to Pakistan, technical assistance will be required.

2.15 The second strategy would be the development of capacity to train and support teachersin the use of continuous assessment techniques. This would be done because: (a) this is an area thatcan provide immediate support for improved teaching practice; and (b) as teachers and teachereducators become familiar with continuous assessment concepts and techniques, the effects are likelyto spill over into improved promotional examinations.

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Increasing Equitable Access

2.16 This component would support efforts to improve the quantity, physical quality, andgender balance of elementary schools operating in the NA and AJK through: (a) reconstruction ofdangerous schools and construction of new school buildings for currently shelterless schools; and (b)in the NA, participatory construction of buildings for community schools. Reflecting current systemneeds, the relative emphasis on system expansion would be greater in the NA than in AJK.Construction strategies would also differ. In the NA, the project proposes a construction strategywhereby construction of all school buildings would be done with community participation. Thisstrategy has been used successfully by the Aga Khan Housing Board in the Northern Areas for over adecade, and is considered viable. Community participation in construction activities is expected tolower overall construction cost by about 30 percent. In AJK, which lacks both institutionalexperience and positive models for community participation in construction, a more conventionalapproach is proposed.

2.17 Overall infrastructure needs have been estimated on the basis of available informationand sample-based infrastructure surveys undertaken during project preparation. A prior condition toinvestments in infrastructure in either the NA or AJK, however, is the conduct of a school mappingexercise. Prior to Negotiations, copies of a signed contract for the first stage of a school mappingexercise in each region were provided to IDA (para. 5. l(d)). Once baseline information has beenestablished, future planning would be based on a yearly school census conducted as part of ongoingsystem monitoring through the education management information system (EMIS).

2.18 The project would also support the establishment of a maintenance capacity in eachschool receiving interventions for the improvement of its physical infrastructure. During the life ofthe project, maintenance funds would be provided annually by the Department or Directorate ofEducation for use by the school (through PTAs, school committees, village education committees orhead teachers). These funds would be expected to be matched either in cash or kind by the localcommittees, which would also bear responsibility for performing or contracting regular maintenancetasks.' Larger issues of the non-salary resources available for infrastructure maintenance for theentire elementary education system would be taken up during Annual Reviews.

(a) Dangerous and Shelterless Schools

2.19 In both the NA and AJK, all construction of school facilities (whether brand new orreconstructed) supported by the project would be based on a revised design developed with theassistance of external consultants. This design would be developed to address issues of space andfunction, flexibility, seismic hazard, thermal conditions, lighting and acoustics. In the NA,approximately 18 schools which are currently in such poor condition as to be considered dangerouswould be completely reconstructed, and approximately 22 currently shelterless Government-runschools would receive new school buildings. In AJK, approximately 225 schools which are currentlyclassified as dangerous would be replaced, and about 125 new school buildings for currentlyshelterless schools would be built (final determination of the numbers and locations of schools selectedfor construction interventions would be made on the basis of the completed school mapping exercise).In both AJK and the NA, priority for the construction of shelterless schools and classrooms would be

23 Costs for maintenance are included under the Community Participation component.

20

given to mixed primary and/or girls schools (primary and elementary levels). In view of theimportance parents accord to safety and privacy in decisions regarding schooling for girls, sanitaryunits and boundary walls would also be provided for all girls schools receiving constructioninterventions.

(b) Community School Construction

2.20 The DOE in the Northern Areas has embraced the establishment of community schoolsas the main strategy for expansion of access to schooling in the region. Many such schools, however,are currently housed in private homes ill-suited to the physical requirements of schooling. Theproposed project would support the participatory construction of approximately 450 school buildingsto serve community schools. In order to qualify for receipt of construction support, a communityschool would minimally have to: (a) meet school mapping criteria for a minimum school-agepopulation base, as well as distance to neighboring schools; (b) have been in existence for at least twoyears, during which time the school must have demonstrated an ability to maintain a minimumnumber of students enrolled and ensured continuity of the teacher; and (c) be run by a villageeducation committee willing to provide land, labor, and local building materials in accordance withprogram requirements.2 4 As with the provision of school buildings to currently shelterless schools,priority would be given to mixed and/or girls schools.25

Strengthening Institutional Capacity

2.21 This component would support ongoing and planned efforts to: (a) strengthen themanagement capacity of the Department/Directorate of Elementary Education through organizationalchanges, the provision of limited additional staff, training, and technical assistance; (b) improve theinformation base for planning and management decisions through the conduct of baseline studies,rationalizing information flows and developing information management systems at the local level;and (c) conduct regular monitoring and evaluation of the proposed five-year program.

(a) Strengthening the Department/Directorate of Education

2.22 In both the NA and AJK, the project would support some additions to and/orrearrangements of current staffing in the Department/Directorate of Education and district offices. InAJK, where overall staffing levels are generally adequate, any new positions would be createdthrough redeployment rather than the creation of new posts. Priority attention would be given toadequate staffing of those units bearing primary responsibility for the elementary education program,including the Directorate of Public Instruction for Elementary Education (DPIEE), the curriculum unit(CRDC) and to the in-service teacher training unit (EEC). Assurances regarding the adequate staffingof the DOEs were received at Negotiations (para. 5.2(g)). In the NA, where the Directorate ofEducation in the NA currently consists of a very small cadre of professional staff at the central anddistrict level, with little or no formal specialization of functions, staffing would be reorganized to

24 Verification of the voluntary nature of land contribution will be undertaken as part of the community"dialogue" process with the assistance of AKRSP.

25 The vast majority of community schools have already been established as mixed or girls primaryschools.

21

reflect the following functions at the central level: (a) academics; (b) planning, development andmonitoring; (c) administration; and (d) colleges. A small technical cell with the capacity to plan andsupervise civil works would be added under the planning function. The majority of incrementalpositions would be added through internal adjustment of posts and contract positions. Additionalposts of Assistant Education Officers (s) responsible for school supervision would be added in bothAJK and the NA, and women would be actively recruited for both administrative and supervisoryposts. Permanent posts added by the project would be financed on a declining basis. An organigramand chart showing proposed organizational structure and additions to current posts is found in Annex7. A draft policy on postings and transfers in AJK was agreed during Negotiations (para. 5.2(0)).

2.23 In addition to adequate staffing, institutional capacity would be strengthened through theprovision of better tools and facilities (furniture, computers, photocopiers and the like), as well astechnical assistance and training. In both the NA and AJK, technical assistance would be providedunder the project to support the following activities, among others: (a) the development of jobdescriptions and performance evaluation tools for managers and supervisors at all levels; (b) thedevelopment of guidelines for supervisory visits to schools; (c) further identification of staff trainingneeds; and (d) the design and provision of training to managers and supervisors (including training inIDA management and procurement requirements). Training may take the form of specially designedcourses given in-house, exposure to short courses available through other institutions in Pakistan,and/or study tours to neighboring countries to examine existing systems for planning anddevelopment, supervision, and monitoring.

2.24 School supervision would be improved through: (a) an improved ratio of supervisors toschools; (b) training for supervisory staff; (c) the provision of jeeps to female supervisory staff; (d)evaluation and further experimentation with school clustering, through which a middle school servesas a resource center for surrounding schools; and (e) increased community involvement.

(b) Improving Education Management Information Systems

2.25 In both the NA and AJK, the project would support the further development of aninformation management system (EMIS). The ultimate goal of such a system would be that each areawould have a timely source of accurate information for the purpose of educational planning,monitoring, and decision making. In AJK, where the existing EMIS cell is at least functioning as asatellite data collection and processing unit for the collection of federally mandated educationalstatistics, emphasis would be placed on strengthening staffing, improving data collection andverification procedures, creating greater understanding of, and incentives for, information reportingand use, and gradually expanding the system to take into account more AJK specific informationneeds. In the NA, where a system would essentially have to be built from the ground up, the initialstrategy would be to rationalize current data collection procedures and information use and at leastcoordinate data collection with that done at the federal level through the Academy for EducationalDevelopment and Management. As feasible in both areas, additional information from baselinestudies (such as the school mapping exercise) would gradually be integrated into the local system.The project would support the provision of computers at the central and district levels, the training ofstaff, and technical assistance in the conduct of studies and systems design.

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(c) Strengthening Monitoring and Evaluation

2.26 To the greatest extent possible, monitoring and evaluation activities under the projectwill derive from and be integrated into the regular functioning of the educational systems of the NAand AJK. The principal modalities would be: (a) systemic monitoring by educational managementstaff; (b) annual, midterm, and final reviews; (c) special studies or reviews undertaken for specificproject components and (d) a baseline and end-of-project sample based survey of student achievementto determine progress in student learning over the project period. Technical assistance and trainingfor strengthening systemic monitoring would be largely provided under sub-components (a) and (b),while this sub-component of the project would support field-based studies to assess institutionalprocesses (including beneficiary feedback) and the contracting of technical assistance for achievementtesting. Monitoring indicators for the project have been developed and are described in detail inAnnex 6. At Negotiations, assurances were given that the Government will monitor and evaluate theimplementation of the project in accordance with agreed Performance Indicators (para. 5.2 (n)).

Community Participation

2.27 Given the very different circumstances of the NA and AJK with regard to current levelsof community participation in education, the project would support different strategies in each area.In the NA, the primary strategy for increasing community participation would be continued support toand improvement of the existing community schools program. In AJK, the primary strategy would bethe establishment school committees in existing Government schools.

(a) Support to Community Schools

2.28 The community schools program started by the DOE under the SAP initiative iscurrently the main avenue for increased access to schooling in the Northern Areas. So central is thenotion of community participation to the overall DOE strategy for education, that in effect allcomponents of the proposed project support the community schools program in some form. Teachertraining opportunities for community school teachers, for example, would be provided under theQuality Improvement component. Similarly, provision of self-help construction support to communityschools has been included under the Increasing Equitable Access component. Support to communityschools under the Community Participation component would complement these activities byproviding additional financial, technical, and institutional support for the expansion and consolidationof the program.

2.29 While it is still unclear in the absence of a school mapping exercise exactly how manyadditional schools are actually needed in the NA, it is clear that: (a) given low primary coveragerates in the NA, more communities would be eligible to receive a school than have been served thusfar; and (b) existing and future community schools will need more financial support to survive on aself-sustaining basis than the one-time Rs. 100,000 grant initially allocated. Under the proposedproject, additional financial support would be provided for up to a maximum of 800 schools. Thissupport will take the form of grants to eligible community schools, to be used for, inter alia, paymentof teachers' salaries, school supplies, and building rental and maintenance. Eligibility criteria for theestablishment and funding of community schools have been reviewed and agreed upon between theDOE and IDA, and would be revised during the course of implementation based on mutual agreement(see Annex 3). During Negotiations, the Government and IDA agreed on the terms, conditions andprocedures of grants (para. 5.2 (1)). Further assurances were received at Negotiations that support to

23

community schools in the NA will be provided in accordance with policies, procedures and guidelinessatisfactory to IDA and publicly announced no later than December 31, 1998 (para. 5.2(m)). Acondition of disbursement for grants to community schools will be in conformity with the terms ofconditions agreed with IDA (para. 5.3(c)).

2.30 Additional technical and institutional support would include: (a) social organization andmobilization training for DOE staff, to enable them to work more effectively with Village EducationCommittees (VECs) and Parent-Teacher Associations (PTAs); (b) a joint Government-AKESPCommunity School Development project to pilot various modalities of management and financialsupport to community schools; and (c) technical assistance and training for DOE staff involved in thedesign and supervision of the community schools program. The project would also support increasingthe levels of community participation in regular Government schools through the creation of PTAs,and the development of school supervision and physical maintenance routines in conjunction withlocal communities. As stated in the description of the Increasing Equitable Access component,maintenance funds for community schools receiving construction assistance would be provided by theDOE and matched by the community, and Village Education Committees and/or PTAs would betrained in routine maintenance and upkeep.

(b) Establishment of School Committees

2.31 In AJK, the basic strategy for increasing community participation in education would bethrough the formation of school committees at the village level. This strategy is consistent with alongstanding proposal for the formation of village education committees under SAP which has yet tobe put in practice in AJK. Under the proposed project, the process of school committee formationwould begin on a pilot basis in a single district, and would involve both the training of AssistantEducation Officers (AEOs) in community mobilization techniques, and the training of newly formedschool committees in their responsibilities.2 6 Technical assistance in coordination of communitymobilization efforts through an NGO or firm would be provided at the level of the DPIEE.

2.32 Under the proposed design, the formation of school committees in the pilot districtwould at least initially be done in conjunction with the reconstruction of dangerous and building ofshelterless schools under the project. The reasons for making this connection are threefold: (a) first,the fact of an investment in physical infrastructure is likely to mobilize the community around theschool and school issues; (b) second, an organized school committee can help oversee the constructionprocess (although not necessarily the most technical aspects); and (c) one of the functions of theschool committee would be the ongoing maintenance of the newly constructed school, therebypreserving the value of the investment under the project. By the time of the project Mid-TermReview, it is expected that a minimum of 50 school committees should be functioning in the pilotdistrict. A decision as to whether to continue the pilot, modify it, expand it, or terminate it would bemade at that point. In view of the fact that the Civil Engineering Cell within the Department ofEducation does not have experience with community participation in construction, the project wouldnot necessarily follow a participatory approach to the construction itself. As has been the pattern in

26 These may include: (a) decision making with regard to school-related investments and purchases; (b)fundraising and administration of funds; (c) regular monitoring of teacher and student attendance; (d) buildingmaintenance; (e) oversight of construction/reconstruction; and (f) serving as education advocates within thelarger community, among others.

24

the past, however, communities would be asked to donate the land for the construction of currentlyshelterless schools (land for the reconstruction of dangerous schools is presumed to be adequate).27

C. Project Management and Implementation

Project Management and Coordination

2.33 By following a program approach to the elementary sector in the NA and AJK, theproposed project endeavors to: (a) ensure that all activities to be undertaken over the project periodare consistent with the regions' overall policy and investment priorities; (b) ensure that plannedincremental activities will not over-burden existing financial or institutional capacity; and (c) minimizethe burden of "special" project monitoring and reporting procedures. With regard to projectmanagement and implementation arrangements, the program approach also favors the strengthening ofimplementation capacity in existing institutions, rather than the creation of a separate PIU.Experience in projects in Pakistan and elsewhere has indicated that unless line departments feelthemselves responsible for project activities, the likelihood of timely implementation and/or projectsustainability is extremely low.

2.34 In both AJK and the NA, therefore, the project would be implemented through theexisting Department/Directorate of Education in cooperation with participating NGOs. The Directorof Education in the NA and the Secretary of Education in AJK would have overall managementresponsibility, with much of the day-to-day responsibility for coordinating implementation in AJKdelegated to the Director for Public Instruction, Elementary Education (DPIEE). Overall programand policy directions, annual plans and budgets would be discussed and agreed by a Program SteeringCommittee which would meet at least twice annually. In the NA, this committee would be chaired bythe Chief Secretary, Northern Areas, and would include representatives from Planning andDevelopment, Finance, selected DOE staff, an experienced educationist from outside the DOE, aswell as representatives from both AKESP and AKRSP. In AJK, the Program Steering Committeewould be chaired by the Additional Chief Secretary and would include representatives from theSecretariats of Planning and Development and Finance, as well as representatives from DOEdepartments involved in various aspects of program/project implementation. The KANA/SAFRONMinistry and the federal Ministry of Education would also bear responsibility for project oversight,but there would be no special project coordinating unit at the federal level.

2.35 Project coordination in both the NA and AJK would be enhanced through theestablishment of Project Implementation Committees within the Department/Directorate of Education.These committees would meet on a monthly basis to coordinate planning and implementationactivities, monitor program progress, and discuss and resolve any issues relating to program/projectimplementation. In AJK, this committee would be chaired by the DPIEE, and would includerepresentatives of all departments and agencies involved in project implementation. Given thesmaller size of the NA Directorate of Education, the Implementation Committee is likely to be a moreinformal body. It was agreed between AKESP, AKRSP and the DOE for the NA, however, that theformation of an NGO-DOE coordinating committee would be established for the purpose ofcoordinating teacher training initiatives, the community school development project, and training

27 Verification of the voluntary nature of land contribution will be undertaken as part of the communitymobilization process.

25

workshops for DOE staff in community mobilization techniques. Agreement that the NA and AJKSteering Committees would meet at least twice yearly and that Implementation Committees wouldmeet monthly was reached at Negotiations (para. 5.2(c)).

Implementation Timeline and Modalities

2.36 The project would be implemented over five years in both the NA and AJK, starting inthe first semester of FY97/98 and closing on June 30, 2002. Development projects in Pakistan mustbe presented to the approving Government authorities in a prescribed detailed format, known as aPC-1. A PC-1 for each region has been prepared for the entire five year period. Prior toNegotiations, IDA received both draft and final versions of the project PC-ls for both regions, thefinal versions having already been approved by the Executive Committee of the Federal Government'sNational Economic Council (para. 5.1(b)). The PC- ls provide flexible but clear guidelines forproject implementation and will be supplemented by a more detailed Project Implementation Plan(PIP) prepared by the Government as well as the preparation of Annual Plans. Prior to Negotiations,IDA also received a completed draft version of the PIP for each region (para. 5.1 (c)). Submission ofthe first Annual Plan for 1997-98 satisfactory to IDA was a condition of Board Presentation that wasalso satisfied at Negotiations (para. 5.2(q)).

Implementation Responsibilities

2.37 On a day-to-day basis, the Directorate/Department of Education would be responsiblefor: (a) monitoring program costs and program accounts; (b) processing disbursement applicationsand keeping track of disbursement of credit funds; (c) procurement of equipment and administrationof contracts; (d) placement and tracking of any local staff receiving training abroad; (e) monitoringprogram/project implementation; and (f) preparation of annual plans and periodic consolidated reportson the progress of project implementation, with reference to agreed monitoring indicators. Specificimplementation responsibilities by objectives and components for both the NA and AJK are found inAnnex 7.

Role of NGOs

2.38 NGOs under the project would for the most part play a role of providing technicalassistance and training, but would also be responsible for some aspects of project implementation(these would include AKESP, AKRSP, and the NGO or firm selected to provide technical assistanceto AJK under the community participation component). In the NA, both AKRSP and AKESP wouldbe considered an integral part of the program, and would participate in the Program SteeringCommittee. In addition, AKRSP would: (a) provide support in the identification of communitieseligible for receiving community school funding, increase awareness among communities regardingprogram criteria; and to extent possible support the dialogue process leading up to the signed Termsof Partnership between the Government and the community; (b) provide social mobilization trainingfor DOE staff; (c) in collaboration with the DOE (and AKESP), develop training materials to be usedwith VECs, school management committees, and PTAs, and train Directorate of Education staff intheir use; and (d) to the extent possible, provide technical support to the DOE in training of VECs,school committees and PTAs. AKESP would: (a) help with the expansion of field-based teachertraining efforts through opening of additional FBTD centers for Government and community schoolteachers, thus giving the Government additional time to expand its own capacity; and (b) participatein a pilot project to develop the community schools program through experimentation with different

26

management and financial mechanisms in a small sample of schools. Both organizations would alsoparticipate in the ongoing monitoring of the NEP through regular contact with Directorate ofEducation staff at different levels. At Negotiations, the Government provided IDA with assurancesthat it will enter into an agreement with the relevant AKDN agencies regarding their participationunder the project, based on the draft technical proposal submitted to IDA and the approved PC-1(para. 5.2(k)).

2.39 Given the relative lack of experience with community mobilization techniques within theDepartment of Education in AJK, technical assistance in this area will be an important factor in thesuccess of the proposed pilot. Either an NGO or a private firm with extensive experience incommunity mobilization would be most appropriate for such an assignment. Technical assistance incoordinating the community mobilization effort would be provided to the DOE primarily in the formof a project coordinator with a strong background in training and social mobilization initiatives. Thecommunity mobilization coordinator would be expected to divide his/her time between on-site trainingof AEOs and school committees in the pilot district, and wider education efforts and reportingfunctions at the level of the DPIEE (for example, the arrangement of two study tours for policymakers and DPIEE and district staff to look at community mobilization efforts elsewhere in Pakistan).To the extent that there are already other social mobilization efforts underway in the pilot district, theproject coordinator and district-level AEOs would be responsible for coordinating with existing effortsto the maximum extent possible.

D. Monitoring, Evaluation, and Supervision

2.40 Project monitoring and evaluation activities would be integrated into regular DOEfunctions and responsibilities, and would form part of the overall effort to build institutional capacity(see also para. 2.26, Annex 6 and Annex 11).

Program and Project Progress and Reporting

2.41 The Directorate of Education in NA and the Department of Education in AJK, supportedby local consultants and inputs from NGOs, would be responsible for ongoing monitoring andreporting to IDA on program and project progress. They would produce annual progress reports andan annual detailed operational plan for the coming year. The reports would: include a narrativesection describing major project achievements and problems encountered; compare actualaccomplishments to agreed plans, including references to agreed project monitoring indicators; andpropose future actions. Detailed formats of the progress reports would be agreed during the projectlaunch. Agreement that the Government would prepare and submit to IDA annual progress reports toIDA was confirmed during Negotiations (para. 5.2(e)). In addition, assurances were given duringNegotiations that a joint Government and IDA Mid-Term review would be conducted by May 2000(para. 5.2(h)); and that an Implementation Completion Report would be submitted by theGovernments to IDA within six months of the closing date of the Project (para. 5.2(i)). Monitoringand evaluation of technical assistance under the project would be integrated into ongoing monitoringefforts and would be a special focus of the Mid-Term Review. Suggestions for monitoring indicatorsare found in Annex 11.

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IDA Supervision

2.42 Primary responsibility for supervision arrangements would be with IDA's ResidentMission in Pakistan. Program and project supervision would be conducted semi-annually, with a fullmission mounted only annually -- typically in April/May coinciding with the budget approval cycleand the discussion of operational plans. Local consultants to be financed under the IDA Credit wouldassist in supervision activities, especially during the October/November missions. Annual supervisionmissions would: (a) require at least two weeks in the field; (b) require the services of specialists ineducation, school construction, management/community, and finance; and (c) review progress ofprogram and project components, as well as procurement, financial statements and disbursements,credit covenants and the implementation of technical assistance. Specialized skill requirements wouldbe added to the missions according to needs identified by previous supervision missions. Theindicators discussed in Annexes 6 and 11 would assist project managers and supervision missions inmonitoring progress and achievements. Supervision of the NEP in the NA would be done in tandemwith other donors (specifically British DFID), so as to enhance project cohesiveness and minimize thetime-burden on the DOE. A supervision schedule is included in Annex 8.

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III. PROGRAM AND PROJECT COSTS

A. Program Costs

3.1 A breakdown of elementary education program costs and the program financing plan isshown in Tables 3.1 and 3.2. The total cost of the elementary program in the NA and AJK isestimated at US$185.5 million equivalent (NA, US$56.2 million, and AJK US$129.3 million).Program costs include the elementary education development and non-development (recurrent)resource requirements over the period 1997-98 to 2001-02. Ongoing development schemes in theelementary sub-sector have been included as well as agreed new schemes, most prominently the NEP.It has been assumed that in the NA, 12 percent of the non-development (recurrent) requirements willbe devoted to non-salary items. In AJK, it has been assumed that by 2001-02, non salary elementaryeducation will grow to 10 percent of the elementary recurrent allocations. The total developmentspending for this program is 27 percent of the program cost; the largest part of the balance isconstituted by the salary bill. The Government will finance an increasing portion of the total programcosts over the five years; donors and communities will finance the balance. The estimated IDAcontribution will be US$22.8 million equivalent, 12.3 percent of the total program costs. Thecontribution from the proposed next round of SAP, which will be complementary to the NEP, isanticipated to be about US$14.3 million equivalent, or 7.7 percent of the program costs. The DFIDhas proposed financing selected program activities in the NA for a total of approximately US$ 3.1million equivalent, or 5.5 percent of program costs in the NA. Communities are expected tocontribute about US$2.5 million equivalent in the form of labor and local building materials for theconstruction of schools, as well as matching contributions for maintenance and learning materialscosts. Habitual contributions by the community in the form of donated land, uniform and textbookpurchases, or other forms of parental and community spending have not been included in programcost calculations.

B. Project Costs

3.2 The IDA credit of US$22.8 million equivalent would finance about 63 percent of totalproject costs of US$36.0 million equivalent. Estimates of project cost by component are presented intable 3.3. Detailed costs by region, components, and categories of expenditure are found in Annex 9.

3.3 Basis of Cost Estimates. Base costs at appraisal (March 1996) have been updated as ofApril 1997 as part of the preparation of regional PC-ls. Base costs are calculated as follows: (a)civil works are based on current market rates; (b) vehicles, equipment, furniture, books and suppliesare based on lists of items prepared by the Directorate/Department of Education of the NA and AJKon the basis of prevailing c.i.f. prices or local market prices as applicable; (c) costs of consultants andtechnical assistance reflect current rates, and overseas fellowships are based on regional costs; and (d)the costs of salaries and allowances are based on current GOP scales.

3.4 Customs and Duties. Goods specifically imported for the project may be admitted freeof duties and taxes. Locally procured goods and services, including materials for construction andconstruction contracts carry duties and taxes at varying rates. Project costs include import duties andtaxes estimated at a total of US$2.3 million equivalent.

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Table 3.1: Northern Areas and Azad Jammu and KashmirEstimated Elementary Education Program (1997/98 - 2001/02)

(Current Rs. and US$ million)

1996-97 1997-98 1998-99 1999-00 2000-01 2001-02 Total(Base) 5 Years)

NORTHERN AREAS

DEVELOPMENT 86.5 174.6 188.9 225.6 323.4 323.4 1235.9NON-DEVELOPMENT 173.7 207.1 245.7 291.5 345.6 409.7 1499.6

Salary 152.8 182.2 216.2 256.5 304.2 360.6 1319.7Non-Salary 20.9 24.9 29.5 35.0 41.4 49.1 179.9

NA Program Total (Rs.) 260.2 381.7 434.6 517.1 669.0 733.1 2735.5

NA Program Total (US$) 7.9 8.6 9.5 10.8 13.3 14.0 56.2

AZAD JAMMU AND KASHMIR

DEVELOPMENT 97.8 147.2 205.1 278.0 278.0 278.0 1186.3NON-DEVELOPMENT 565.2 695.0 852.3 1008.9 1175.4 1369.4 5101.0

Salary 536.9 653.3 792.6 928.2 1069.6 1232.4 4676.1Non-Salary 28.3 41.7 59.7 80.7 105.8 137.0 424.9

AJK Program Total (Rs.) 663.0 842.2 1057.4 1286.9 1453.4 1647.4 6287.3

AJK Program Total (US$) 20.0 19.1 23.1 26.8 28.8 31.5 129.3

PROGRAM TOTAL (Rs.) 923.2 1223.9 1492.0 1804.0 2122.4 2380.5 9022.8

PROGRAM TOTAL (US$) 27.9 27.7 32.6 37.6 2 L5.5 185.5

Table 3.2: Northern Areas and Azad Jammu and KashmirElementary Education Program Financing Plan

(Rs. and US$ million)

GOP IDA DFID SAP COMMUNITIES TOTAL

Program (Rs. million) 6,944.8 1,095.6 145.3 711.3 1/ 125.8 9,022.8Program (US$ million) 142.8 22.8 3.1 14.3 2.5 185.5

Percent 77.0% 12.3% 1.7% 7.7% 1.3% 100%

" At about 10 percent of GOP's contribution to the total elementary education program.

Table 3.3: Pakistan, Northern Education ProjectAzad Jammu Kashmir and Northern Areas

Components Project Cost Summary

(Rs. Million) (US$ Million}_% % Total

Foreign BaseLocal Foreign Total Local Foreign Total Exchange Costs

A. Improving Quality of Education1. Teacher Training 156.0 63.6 219.6 3.7 1.5 5.3 29 162. Curriculum & Education Materials Dev. 29.1 35.5 64.6 0.7 0.9 1.6 55 53. Assessments 19.1 37.9 57.0 0.5 0.9 1.4 66 4

Subtotal 204.2 137.0 341.3 4.9 3.3 8.2 40 25

B. Increasing Equitable Access andSupport to Community Schools

1. Dangerous and Shelterless Schools 321.9 37.3 359.2 7.7 0.9 8.6 10 262. Community School Construction 288.6 32.5 321.1 6.9 0.8 7.7 10 24 ,

Subtotal 610.5 69.8 680.3 14.7 1.7 16.3 10 50

C. Strengthening Institutional Capacity1. DOE Strengthening 105.7 54.1 159.8 2.5 1.3 3.8 34 122. EducationManagement Information System 6.6 4.6 11.2 0.2 0.1 0.3 41 13. Monitoring & Evaluation 5.9 7.2 13.1 0.1 0.2 0.3 55 1

Subtotal 118.2 65.9 184.1 2.8 1.6 4.4 36 13

D. Community Participation1. Support to Community Schools 117.2 30.7 147.9 2.8 0.7 3.6 21 112. Establishment of School Committees 9.1 1.8 10.9 0.2 0.0 0.3 17 1

Subtotal 126.3 32.5 158.8 3.0 0.8 3.8 20 12

Total BASELINE COSTS 1059.2 305.3 1.364.5 25.4 7.4 32.8 22 100

Physical Contingencies 44.5 7.5 52.0 1.1 0.2 1.2 14 4Price Contingencies 269.1 63.3 332.3 1.6 0.4 2.0 20 6

Total PROJECT COSTS 1.372.8 376.1 1I.7489 28.1 7.9 36.0 22 110

Note: Figures may not sum exactly due to rounding.

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3.5 Contingencies and Allowances. Project cost estimates include physical contingencies(US$1.2 million) averaging four percent of base costs. A physical contingency of 7 percent wasapplied to civil works, and five percent to vehicles, equipment, and furniture. Price contingenciesamount to US$2.0 million, or six percent of base costs. Annual inflation estimates for local costs are:9.0 percent in FY1997-98, 7.7 percent in FY1998-99, 7.1 percent in FY1999-00, and 6.9 percent inFY2000-01, and in FY2001-02. Annual inflation estimates for foreign costs are 2.2 percent in FY1997-98, 2.6 percent in FY1998-99, 2.8 percent in FY1999-00, and 2.4 percent in FY2000-01 andFY2001-02.

3.6 Foreign Exchange Component and Local Cost Financing. The estimated foreignexchange component (US$7.9 million), including contingencies, represents 22 percent of total projectcosts. It has been calculated based on the following assumptions regarding foreign exchange content:(a) civil works - 10 percent; (b) vehicles - 72 percent; (c) books and materials - 73 percent; (d)equipment - 87 percent; (e) international consultants and fellowships - 85 percent; (f) furniture - 4percent; (g) grants and honorarium - 23 percent; (h) operations and maintenance - 15 percent; and (i)other operational costs - 33 percent. These assumptions are derived from experience with similarprojects in Pakistan. The high local cost component of the project is fairly typical of primaryeducation projects, where many activities involve inputs which are widely available locally or are bytheir nature locally based. For example although foreign consultants are involved under the project inimproving the content and methodology of teacher training, the costs of teacher training itself arepredominantly local. Similarly, school construction under the project involves building simplestructures in extremely remote areas, where reliance on local materials and labor results in dramaticsavings on both initial construction and maintenance costs. Given both the goals and nature of theproject, the high local cost component is justified.

C. Financing Arrangements

3.7 The IDA Credit of US$22.8 million equivalent would finance about 63 percent of costsnet of taxes and duties (estimated at US$2.3 million). DFID would finance a portion of NEPactivities in the NA, amounting to 8.6 percent of the project overall (estimated at US$3.1 million).The GOP would contribute US$ 7.7 million equivalent (21.5 percent of total project costs), whilecommunity contributions to construction and maintenance would make up the remaining 7 percent(costs are estimated at US$2.5 million). A financing plan is found in Table 3.4. At Negotiations, theGovernment confirmed that it intends to enter into an agreement with DFID for financing of a portionof program activities in the NA (para. 5.2(o)). Fulfillment of DFID's conditions of effectivenesswould be a condition of disbursement for the IDA credit in the NA (para. 5.3(a)).

D. Procurement

3.8 The program nature of the project makes it difficult to forecast in detail both the totalprocurement amounts for different categories of expenditure and the anticipated amounts of IDAfinancing within these categories. The figures given below and in Table 3.5 should be regarded asindicative; final details would be discussed between the Governments and IDA as part of the regularyearly agreements. Procurement of goods, services, and works financed by the IDA credit would beundertaken in accordance with the Guidelines for Procurement under IBRD Loans and IDA Credits(January 1995, revised January and August 1996). The Government's national competitive biddingprocedures, already used in on-going IDA funded projects, have been found to be satisfactory andacceptable to IDA.

Table 3.4: Pakistan, Northern Education ProjectAzad Jammu Kashniir and Northern Areas

Project Financing Plan(US$ million)

International Department2'Development Community" for International Gov. of Local

Association Contribution Development Pakistan Total For. (Excl. Duties&Amount % Amount % Amount % Amount % Amount % Exch. Taxes) Taxes

A. Improving Quality of Education1. Teacher Training 3.5 63.2 - - 1.1 20.5 0.9 16.3 5.6 15.5 1.6 3.7 0.22. Curriculum & Education Materials Dev. 1.4 82.4 - - 0.2 9.4 0.1 8.2 1.6 4.5 0.9 0.6 0.13. Assessments 0.6 44.6 - - 0.6 43.4 0.2 12.0 1.4 3.9 0.9 0.3 0.2

Subtotal 5.5 63.8 - - 1.9 22.2 1.2 14.1 8.6 24.0 3.5 4.7 0.5

B. Increasing Equitable Access andSupport to Community Schools1. Dangerous and Shelterless Schools 7.0 71.3 0.3 3.2 0.2 1.8 2.3 23.7 9.8 27.2 1.0 7.9 0.92. Community School Construction 4.3 48.0 2.0 22.7 - - 2.6 29.2 8.0 24.7 0.9 7.2 0.7

Subtotal 11.3 60.2 2.3 12.5 0.2 0.9 4.9 26.3 18.7 51.8 1.9 15.1 1.6 o

C. Strengthening Institutional Capacity1. DOE Strengthening 2.4 58.6 - - 0.3 7.4 1.4 34.0 4.0 11.2 1.4 2.5 0.12. Education Management Information System 0.1 43.0 - - 0.1 40.9 0.0 16.0 0.3 0.8 0.1 0.2 0.03. Monitoring&Evaluation 0.1 43.3 - - 0.1 43.9 0.0 12.8 0.3 0.9 0.2 0.1 0.0

Subtotal 2.6 56.5 - - 0.6 12.1 1.5 31.4 4.7 13.0 1.7 2.8 0.2

D. Community Participation1. Support to Community Schools 3.2 83.9 0.1 3.4 0.4 10.7 0.1 2.0 3.8 10.4 0.8 3.0 0.022. Establishment of School Committees 0.2 75.1 0.0 12.8 - - 0.0 12.2 0.3 0.8 0.0 0.01

Subtotal 3.4 83.3 0.2 4.1 0.4 9.9 0.1 2.7 4.0 11.2 0.8 3.2 0.04

Total 22.8 63.1 2.5 7.0 3.1 8.5 7.7 21.4 36.0 100.0 7.9 25.8 2.3

Note: Figures may not sum exactly due to rounding.

81 Communities donation of land not included.

b/ DFID has proposed financing of about US$3.1 million for project activities in the Northern Areas.

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Table 3.5: Pakistan, Northern Education ProjectAzad Jammu Kashmir and Northern Areas

Procurement Arrangements(US$ million)

Procurement MethodInternational NationalCompetitive Competitive Non-Bank-

Project Element Bidding Bidding Other/a Financed/b Total

1. Civil Works 10.4 4.5 2.3 17.3(7.0) (3.0) (10.0)

2. Goods

(a) Vehicles 1.2 1.2(1 .1) (1. 1)

(b) Equipment 0.6 0.1 0.7(0.6) (0.6)

(c) Furniture 2.3 0.01 2.3(1.9) (1.9)

(d) Books & Materials 0.9 0.01 0.9(0.9) (0.9)

3. Technical Assistance

(a) Institutional Development 2.0 2.5 4.5(1.5) (1.5)

(b) Training 1.7 0.4 2.2(1.7) (1.7)

4. Grants-Community Support & NGOs 3.1 3.1(3.0) (3.0)

5. Other

(a) Incremental Salaries 2.2 2.2(1.6) (1.6)

(b) Operating costs and Travel 1.6 0.2 1.7and Daily Allowances (0.4) (0.4)

Total 1.2 13.4 16.1 5.6 36.0(1.1) a. (1.2 (0.0) (22.8)

Note: Figures in parenthesis are the respective amounts financed by IDA. Figures may not sum exactly due torounding.

a/ Other procurement methods include force account, shopping, hiring of consultant servicesunder IDA guidelines, administrative expenditures following Government procedures, andcommunity-managed construction.

b/ Includes community contribution of US$2.5 million (excluding donation of land), and DFID-financed activities in the Northern Areas.

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3.9 The project would finance the procurement of civil works (about US$17.3 millionequivalent); vehicles (about US$1.2 million equivalent); equipment, including computers (aboutUS$0.7 million equivalent); furniture (about US$2.3 million equivalent); books and materials (aboutUS$0.9 million equivalent); technical assistance (both institutional development -- about US$4.5million equivalent, and training -- about US$2.2 million equivalent); community grants and NGOcontracts (about US$3.1 million equivalent); incremental staff salaries (about US$2.2 millionequivalent), and operating costs, including school maintenance and travel/daily allowances (aboutUS$1.7 million equivalent). Most procurement under the project is expected to involve smallcontracts spread over widely dispersed geographical areas and throughout the project period. Thenature of such contracts is unlikely to interest foreign bidders, and would, therefore, be suitable onlyfor National Competitive Bidding (NCB), and prudent shopping. The exception would be vehicles,which would be procured under International Competitive Bidding (ICB) procedures. AtNegotiations, the Government provided sample bidding documents for (a) vehicle procurementthrough ICB (using Bank Standard Bidding documents); and (b) equipment procurement through NCB(para. 5.2.(d)).

3.10 IDA Review Requirements. IDA, would review all ICB and contracts aboveUS$200,000 equivalent, as well as the first four contracts in each area irrespective of their value. Allother contracts would be subject to selective post-review. All consultants would be selected inaccordance with IDA guidelines, which include prior review of all contracts with consulting firmscosting the equivalent of US$50,000 or more and with individual consultants costing the equivalent ofUS$50,000 or more. Other procurement arrangement subject to prior review by IDA include: (a) allsingle-source contracts; (b) all contracts for assignments of a critical nature, as determined by IDA;(c) amendments to IDA-financed contracts raising the contract value above US$100,000 for consultingfirms or US$50,000 for individuals; and (d) terms of reference for technical assistance and training.Selection and employment of consultants would be undertaken in accordance with the GuidelinesSelection and Employment of Consultants by World Bank Borrowers (January 1997).

E. Disbursements

3.11 The proposed IDA credit of US$22.8 million equivalent would cover expendituresincurred from FY1997-98 to FY2001-02. Actual annual disbursement would depend on performance,and the pattern of expenditure yearly agreed upon. Estimated annual disbursements are presented inAnnex 10. The proposed project would cover reimbursements for incremental expenditures under theproject, while SAPP would continue to reimburse at about its established level for NA and AJK.Both the NEP and SAPP projects would place particular emphasis on increasing non-salary recurrentallocations, and ensuring the timely release of budgets within the first quarter of each fiscal year.Agreement that Government funds would be released to the Department/Directorate of Education bythe fifteenth of the first month of every quarter was reached during Negotiations (para. 5.2(b)).

3.12 The project would reimburse a proportion of all eligible expenditures incurred in theelementary education sectors of the NA and AJK, excluding any already donor-aided projects and/oractivities.28 The annual agreement between the Government and IDA (and any other project donors)

28 There are none at present -- two donor-aided projects in the elementary education sector in AJK arescheduled to end by December 1996. DFID financing of technical assistance and NGO activities in the NA mayfollow separate DFID disbursement procedures.

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would include a detailed identification of eligible categories of expenditure. Certain categories ofexpenditure have been identified as outside the project, and are therefore ineligible for projectfunding. These include development and recurrent expenditures for the secondary and higher level ofeducation, with the exception of construction of female teacher training colleges in the NA. Otherexpenditure categories such as land acquisition, taxes, and duties are ineligible under IDA rules.Apart from these exceptions, all expenditures incurred in the delivery of elementary educationincluding incremental salaries, operating expenses, training, civil works and maintenance expenseswould be eligible.

3.13 Reimbursement would be claimed at least quarterly and perhaps more frequently,depending on the capacity of the NA and AJK to generate claims. Claims would normally be made inthe form of Statements of Expenditure (SOEs) specifying categories of expenditure and total eligibleexpenditure. In those few cases where contracts for goods and civil works exceed US$200,000equivalent, US$100,000 for consulting firms or US$50,000 for individual consultants, fulldocumentation would be required. All claims would be certified by the respective Secretaries of theDOEs, who would then submit them to IDA. Only claims above US$ 50,000 equivalent would besubmitted to IDA for reimbursement/payment. SOEs would have to be received by IDA within sixmonths of the end of the fiscal year in which the expenditure was incurred. This would ensureflexible reallocation of unused resources from portions of the program which may be underspending,and maximum funding availability for those areas of the program where expenditures are occurring.

3.14 Credit disbursements would finance: (a) 70 percent of all expenditures on civil works,70 percent of all expenditures on furniture and 20 percent of all expenditures on other operationalcosts during FY1998 -- thereafter such percentage will be annually agreed between the Governmentsand IDA; (b) 100 percent of foreign and 100 percent of local expenditures (ex-factory cost) and 85percent of local expenditures procured locally on vehicles and equipment; (c) 100 percent of allexpenditures on books and materials, technical assistance, and training; (d) 100 percent ofexpenditures on incremental salaries until June 30, 1999; 60 percent until June 30, 2001; and 40percent thereafter; and (e) community support at 97 percent.

3.15 Special Accounts. To ensure timely and efficient execution of project activities, twospecial accounts, one for the NA and one for AJK, would be established. In both cases, the accountswould be opened in a commercial bank acceptable to IDA. The authorized amount of the SpecialAccount for the NA would be US$400,000 equivalent, with an initial deposit limited to US$200,000.In the case of AJK, the authorized amount would be US$300,000 equivalent, with an initial depositlimited to US$150,000 equivalent. Funds from the Special Accounts would be available for financingonly IDA's share of eligible project expenditures. IDA would replenish the Special Accounts uponreceipt of satisfactory evidence that expenditures were eligible for financing out of the accounts.Withdrawals from the Special Accounts would be possible after IDA receives confirmation of: (a) theappointment of qualified accountants in each region, having a minimum of five years experience andBS-17 or above; and (b) plans for the establishment of a financial management system for projectimplementation in both areas.

F. Accounts and Audits

3.16 The DOE in each region would maintain separate accounts of project expenditures inaccordance with sound accounting practices, and project accounts would be audited in accordancewith Guidelines for Financial Reporting and Auditing of Projects Financed by the World Bank (1992).

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Financial management procedures and provisions for accounting, disbursement, and procurement staffhave been agreed with the Government. The project would support technical assistance and trainingto strengthen financial management in the NA and AJK. Additional details are found in Annex 12.The accounts, SOEs and procurement documentation would be audited each year by independentauditors acceptable to IDA and submitted to IDA no later than six months after the end of the relevantfiscal year. The audit reports would include an assessment of the adequacy of the accounting systemand internal financial control, the reliability of SOEs, use of Special Accounts and the degree ofcompliance with agreed financial arrangements. Agreement that the Governments would maintainseparate project accounts which would be audited yearly by independent auditors acceptable to IDAwas confirmed during Negotiations (para. 5.2(f)).

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IV. ASSESSMENTS

A. Financial Assessment and Sustainability

4.1 If the Government's current priorities of improving access to and quality of elementaryeducation are to be implemented, the level of educational expenditures would need to increase overthe next few years. In the NA, a large proportion of the needed expenditures at the elementary levelrepresents investments in access and quality improvements which will have important pay-offs in themedium and longer term and without which the system will remain stagnant and call for much largerinvestments in later years. Increased allocations to elementary education in AJK are also necessary tomake up for the low quality and deficits in education stocks; low levels of spending and a focus onthe expansion of access at the expense of quality have resulted in low student achievement and pooreducation assets, such as inadequately trained teachers, dangerous and poorly maintained schools, andlack of school equipment.

4.2 In order to meet program needs, the share of education in the total ADP will need toincrease over the next five years. It is estimated that education development expenditures would needto rise at an average annual rate of 18 percent and 17 percent in the NA and AJK respectively overthe project period (compared to an average annual increase of 21 percent and 3 percent in NA andAJK respectively over the past five years). The declining trend in the recurrent (non-development)spending in elementary education also needs to be reversed. In the NA, elementary education non-development expenditures will need to increase at an average of 11 percent in real terms. Non-salaryallocations will need to be maintained at the 1995-96 level of 12 percent of the elementary educationallocations. In AJK, elementary non-development allocations will need to increase faster than for thesector as a whole, 11 percent versus 9 percent, in order to make up for the recent declines. Non-salary allocations, practically non-existent at present, will need to grow at an average of about 28percent (see Annex 2 for tables and additional information).

4.3 These increases in the NA and AJK budgets are proportionally large when compared tothe very low current allocations, but very modest in absolute terms. They are marginal increaseswithin the context of the total federal budget. The education sector development expenditures in theNA and AJK represent a very small part of the total federal development expenditures -- only aboutone quarter of one percent in 1995-96. The projected education sector allocations (inclusive of theproposed project) required during 1996-97 to 2001-02 would increase the above mentioned share toless than one half of one percent. The increases planned for the NA and AJK education sectorbudgets as part of the overall budget are thus extremely small and well within the capacity of thefederal Government. Federal commitment to providing these levels of increased resources to the NAand AJK was confirmed at Negotiations.

4.4 With regard to the sustainability of project investments beyond the life of the project, thelevel of recurrent resources required to sustain quality improvement, institutional development, andinfrastructure investments is likely to be low. Increased involvement of communities in theconstruction and/or maintenance of school buildings is expected to generate additional resources,irnprove the communities' sense of ownership of, and responsibility for, school property, andpreserve investments over a longer time period through improved and more regular maintenanceroutines. The heaviest potential burden on future NA education budgets may be the need forcontinued support to community schools. Although it is the intent of the DOE to experiment withmechanisms to make community schools virtually self-sustaining, this may not be a realistic goal,

38

particularly in the poorest communities. Nevertheless, even if the DOE were to have to assume thefull cost of additional financial support in the form of a per-student subsidy to community schools,the yearly cost is estimated to be only approximately four percent of the total program budget in thefinal year of the program, or six percent of recurrent (non-development) resources during the sameyear. This level of effort is considered financially manageable, and a relatively light burden giventhat community school enrollments are projected to make up approximately 23 percent of totalenrollments by the final year of the program. SAP/SAPP policy and financial support (particularlywith regard to recurrent budgets and non-salary spending) are also expected to enhance projectsustainability.

B. Institutional Assessment

4.5 As indicated in Chapter I (paras. 1.31 to 1.38), institutional capacity is quite different inAJK and the NA. Along with its much larger education system, the DOE in AJK is far larger andmore complex than the Directorate of Education in the NA, which has a skeletal staff and has notseen any increases to central administration staff in the last 20 years. Institutional issues in AJKcenter on effective coordination and use of existing staff and information, as well as upgrading ofskills, while in the NA the challenge for program implementation will be recruiting adequate staff,training, and developing an organizational structure capable of effectively handling a fairly rapidexpansion of the education system. There is also a slightly higher level of technical expertise in theeducation units in AJK (CRDC and the EMIS unit, for example) than exists in the NA. AJK also hashad limited experience with outside donor funding and regulations (for civil works, in particular),while the NA has not had such prior experience.

4.6 Capacities also differ in the non-government sector. With the exception of the NationalRural Support Network, an NGO which has been operating for the last three years in the district ofPoonch, there are practically no professionally-managed NGOs in AJK, nor larger welfareorganizations with a track-record of broad-based community organization. In the NA, in contrast,AKESP has 30 plus years of experience working in the education sector in the NA, while AKRSP hasbeen organizing community groups across the five districts for the last 15 years. While relativelylean in terms of staff, both organizations have demonstrated capacity to initiate, staff, and monitorprograms. Although neither organization has had experience with formal Government relations, thereis a history of informal cooperation with Government agencies (including the DOE).

4.7 Given limitations to institutional capacity (particularly within the DOE), technicalassistance, both local (including NGOs) and foreign, is likely to be an important factor in smoothproject implementation in both regions. A detailed description of projected technical assistance needs,as well as monitoring indicators, is included in Annex 11. With few exceptions, the objective of mostof the technical assistance envisioned would be the establishment of permanent institutional capacity,through setting up baseline information and systems, and training of staff.

C. Economic Assessment, Benefits and Risks

Benefits

4.8 The project would directly or indirectly benefit over one million children over the fiveyears of project implementation, through a combination of improvements in school quality and access.In the NA, it is expected that the project would expand overall enrollments at the elementary level by

39

approximately 28 percent over current levels and double the-number of girls in school. An increasedlevel of literacy improves economic productivity and income-earning potential for both sexes; forgirls, additional years of education and literacy are known to have a positive effect on loweringpopulation growth and infant mortality (see also Annex 13). Difficulties with data collection andinformation for the NA and AJK, lack of data on earnings in these regions, and problems in valuingthe broader social benefits that would accrue with the NEP project make formal cost-benefit and ratesof return analysis unfeasible. Rates of return to schooling in Pakistan, however, can be used as aproxy. These rates are consistent with other studies which indicate that returns to education are high,and that social returns to education are highest at the lower levels of education (20% private rate ofreturn and 13% social rate of return at the primary level)29.

4.9 Further benefits expected from the project include: (a) improvements in learningachievement through better trained teachers, more appropriate materials, and a more hospitablelearning environment; (b) lower teacher absenteeism, improved school maintenance, and improvedsystem accountability through community participation in school management; (c) a reduction indropout rates (particularly for girls) and higher overall completion rates through a combination ofimprovements in the learning environment, community sensitization and monitoring, the recruitmentof female teachers, and improved access at the middle levels; (d) improved availability of qualifiedfemale teachers (in the NA); and (e) improvements in system management and resource allocationthrough better information and planning practices and more qualified staff.

Cost Effectiveness

4.10 The overall aim of the proposed project is to improve the quality of and access toelementary education, especially for female students. The design and preparation of the project wereaimed at developing the most cost effective approach to these objectives, given the prevailingconditions in each region. Examples of alternative approaches evaluated include those chosen withregard to construction, teacher training, and expansion of access. In the NA, for example, thedecision was made to proceed with a participatory approach to construction involving communities.This approach is expected to lower overall construction costs by about 30 percent, and given a longhistory of participatory construction in the NA, was considered viable. In AJK, in contrast, aparticipatory approach to construction was not suggested, as the logical implementing agency had noexperience with this type of construction and the institutional hurdles were considered too great.With regard to teacher training, the choice was made to expand the FBTD program to meet the bulkof training needs in the NA. This program is a model of cost effective training for areas with greatneed. It requires no investment in facilities, as it is conducted in existing schools and district offices.Per-student costs for the training are lower than training done in colleges, but the effectiveness ofFBTD lies not only in its modest cost but in its intensive focus on practical skills.

4.11 Finally, in deciding how to approach the great need for expansion of access in the NAwhile keeping the Government and region's fiscal constraints in mind, the project opted to support theexpansion of the community schools program. While the program is still quite new and available dataare not sufficient to support a robust cost-effectiveness analysis, existing data suggest that even afterincreasing the level of financing to community schools they would be less expensive to run than thenormal Government school. Recent sector work on community participation in other parts of

29 Behrman, Jere R., 1995.

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Pakistan also suggests that schools with substantial community involvement tend to be more effectivein terms of learning outcomes (see Annex 13 for a more detailed discussion).'

Risks

4.12 During preparation, an effort has been made to analyze and reduce project risks.Nevertheless, risks remain especially given the remoteness of the regions and their lack of experiencewith projects. The project faces risks related to: (a) design, (b) implementation; (c) financialenvironment and (d) political factors. With regard to project design, the heavy emphasis oncommunity participation presents both potential benefits and risks. Reliance on communityparticipation in construction may mean that construction moves more slowly. In AJK there is likelyto be substantial-institutional resistance to meaningful community involvement in school affairs, whilein the NA the reliance on community schools as the principal means for increasing access to educationrisks overburdening communities and furthering inequities between the communities that cancontribute a lot, and those that can contribute very little to their children's education. The project hasattempted to mitigate these risks through the use of pilots, drawing on local expertise wheneverpossible, and supporting and further developing the community school program. While the risks stillexist, we believe the potential benefits outweigh them. The absence or poor quality of basic data inboth areas also means that estimates of system needs may be considerably off. The project design hasattempted to take this risk into account by adopting a more flexible approach with Annual Reviews.

4.13 Implementation risks include the executing agencies' relatively weak institutionalcapacity, lack of experience with Bank procedures and managerial requirements, heavy internalbureaucracy, and the possible turnover of key managers and staff. The project addresses the first twoof these risks through keeping project components as simple as possible, relying whenever possible onlocally available expertise, strengthening critical DOE departments or areas, and including technicalassistance and training. While the project cannot change the Government's rules of business, it seeksto avoid some levels of bureaucracy through dealing directly with the AJK and NA Governments asmuch as possible, rather than channelling everything though a federal level coordination unit. Thelast risk -- turnover of key managers and staff -- can without doubt have the most negative effects onproject implementation. Actions taken or to be taken to reduce this risk include making sure theproject is broadly discussed and supported within the existing institutions as part of projectpreparation, planning for the provision of ongoing training and technical assistance, and using AnnualReviews as a forum for raising overall concerns with the Government.

4.14 The principal financial risk to the project is the possible deleterious effects of federalbudget cutbacks on overall budgetary allocations to the NA and AJK, and within these, specifically toeducation. A SAPP-type project is the logical framework for addressing these issues. Risks relatedto political factors include interference in site selection for construction of schools and in teacherappointments, as well as changes of Government, a possible flare-up of sectarian violence in the NA,or a change in the overall status of AJK. The first of these two risks will be addressed through theuse of school mapping results for the rational selection of school sites and through the use of merit-based criteria in the hiring of teachers. Over the remaining risks, of course, the project has no

30 See "Improving Basic Education in Pakistan: Community Participation, System Accountability, andEfficiency." World Bank, 1995.

41

control. Given the high priority of improving education in these neglected areas, the risks overall areconsidered acceptable.

D. Environmental Assessment

4.15 No adverse impact on the enviromnent is expected from this project (screening categoryC). Some benefit is expected through lower population pressure, an increasingly literate population,and the possible integration of environmental themes into revised educational materials. Noinvoluntary resettlement is anticipated, since land for school construction will be acquired throughvoluntary community contributions, as verified through a "community dialogue" process developedwith the help of participating NGOs.

I

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V. AGREEMENTS REACHED AND RECOMMENDATION

5.1 Prior to Negotiations, the Government fulfilled the following conditions byforwarding to IDA:

(a) final and formally approved copies of NA and AJK documents on strategies andpriorities in the elementary education sector (para. 2.3);

(b) project PC-Is for NA and AJK, already approved by the Executive Committee of theNational Economic Council (ECNEC) (para. 2.36);

(c) drafts of the NA and AJK Project Implementation Plans (PIP) (para. 2.36);

(d) signed contracts of technical assistance to conduct the first stages of a school mappingexercise in the NA and AJK (para. 2.17).

5.2 At Negotiations, the Government:

(a) confirmed the strategies and priorities contained in the AJK and NA documentsmentioned above (para. 2.3);

(b) agreed that: (i) annual sub-programs for each project year would be prepared and agreedwith IDA, covering both Government and non-government inputs, activities, policyreforms and financial commitments; (ii) any major proposed change to the approvedprogram would be agreed in advance with IDA; and (iii) funds would be released to theDepartment/Directorate of Education by the fifteenth of the first month of every quarter(paras. 2.2 and 3.11);

(c) agreed that the NA and AJK Steering Committees would meet at least twice yearly andthe Project Implementation Committees would meet at least once a month (para. 2.35);

(d) provided sample bidding documents and contracts for (i) vehicle procurement throughICB; and (ii) equipment procurement through NCB (para. 3.9);

(e) agreed that both Governments will prepare and submit to IDA annual progress reports(para. 2.41);

(f) agreed that both Governments will keep separate project accounts which would beaudited yearly by independent auditors acceptable to IDA (para. 3.16);

(g) provided assurances regarding the full staffing of the Directorate(s) of Education in theNA and in AJK (para. 2.22);

(h) agreed that a Government-IDA Mid-Term Review would be conducted by May 2000(para. 2.41);

43

(i) agreed that an Implementation Completion Report would be submitted by theGovernment to IDA within six months of the project Closing Date (para. 2.41);

(j) provided a draft policy on postings and transfers of staff in AJK (para. 2.22);

(k) for the NA, provided IDA with assurances that the Government will enter into anagreement with AKDN agencies regarding their participation in project activities, basedon the draft technical proposal submitted to IDA and the approved PC-I (para. 2.38);

(1) agreed on the terms, conditions and procedures of grants (para. 2.29);

(m) agreed that support to community schools in the NA will be provided in accordance withpolicies, procedures and guidelines satisfactory to IDA and publicly announced no laterthan December 31, 1998 (para. 2.29);

(n) agreed that the Government will monitor and evaluate the implementation of the projectin accordance with agreed Performance Indicators (para. 2.26);

(o) confirmed that the Government intends to enter into an agreement with DFID forfinancing of a portion of program activities in the NA (para. 3.7);

(p) confirmed satisfactory progress on the FY 1997/98 SAP operational plan for the NA andAJK education sectors (para. 2.1);

(q) submitted the NA and AJK Annual Plans for FY1997-98 (para. 2.36);

5.3 There will be three conditions of Disbursement:

(a) For the NA, satisfaction of effectiveness conditions of DFID agreement (para.3.7);

(b) For both the NA and AJK, no disbursements will be made in respect of asub-program unless such sub-program has been approved by IDA (para. 2.2); and

(c) For grants to community schools in the NA, no disbursements will be madeunless grants conform to the terms and conditions agreed with IDA (para. 2.29).

5.4 Subject to the above understandings and conditions, the proposed project provides asuitable basis for an IDA credit of SDR 16.4 million (US$22.8 million equivalent) on standard IDAterms for 35 years maturity to the Government of the Islamic Republic of Pakistan.

ANNEXE S

PAKISTAN - NORTHERN EDUCATION PROJECTNORTHERN AREAS EDUCATIONAL STATISTICS

Table 1: Trends in Total Enrollment by Level and Year, Northern Areas, 1992-94 (a)

Primary K-V (b) Middle VI-MI High IX-XYear Male Female Total % growth Male Female Total % growth Male Female Total % growth1992 41536 18799 60335 13050 4237 17287 4424 1132 55561993 43295 22081 65376 8% 13948 4544 18492 7% 4773 1177 5950 7%1994 50799 23228 74027 13% 15832 4989 20821 13% 5859 1244 7103 19%

Source: Directorate of Education, Northern Areas(a) AKESP enrollments are included for all years; other private schools not included (unavailable).(b) Assumes under-age students are included.

Table 2: Elementary Enrollment and Gender Balance by District, Northern Areas, 1994

Primary K-V (a) Females Middle V-MII FemaleDistrict Males Female Total as %Total Males Female Total as %TotalGilgit 14140 10021 24161 41% 4505 2738 7243 38%Ghanche 7023 1717 8740 20% 2146 235 2381 10%Diamer 10041 2064 12105 17% 2753 116 2869 4%Ghizer 7967 5729 13696 42% 3318 1299 4617 28%Skardu (d) 11628 3697 15325 24% 3110 601 3711 16%Total 50799 23228 74027 31% 15832 4989 20821 24%

Source: Directorate of Education, Northem Areas; AKESP(a) Assumes under-age students are Included.

t',J

aq>CD

_

47 ANN-EX IPage 2 of 12

Table 3.1: Participation Rate for Primary Classes, K-V, Northern Areas, 1994(Age Group 4-9 Years)

Males FemalesDistrict Population Enrollment Rate Population Enrollment Rate

Gilgit 18042 14140 78% 17332 10021 58%Ghanche 9441 7023 74% 9138 1717 19%Diamer 14828 10041 68% 14320 2064 14%Ghizer 9000 7967 89% 8627 5729 66%Skardu 17575 11628 66% 16931 3697 22%Total 68886 50799 74% 66348 23228 35%

Source: Directorate of Education, NA and AKESP for enrollment; National Institute for Population Studies andWorld Bank population projections from 1981 Census for 1994.Note: Enrollment assumes "infants" are included; community school enrollments are not included.

Table 3.2: Participation Rate for Middle Classes, Northern Areas, 1994(Age Group 10-12 Years)

Males FemalesDistrict Population Enrollment Rate Population Enrollment RateGilgit 7786 4505 58% 7593 2738 36%Ghanche 3865 2146 56% 3863 235 6%Diamer 6259 2753 44% 6132 116 2%Ghizer 3771 3318 88% 3654 1299 36%Skardu 7420 3110 42% 7252 601 8%Total 29101 15832 54% 28494 4989 18%

Source: Directorate of Education, NA and AKESP for enrollment; National Institute for Population Studies andWorld Bank population projections from 1981 Census for 1994.

Table 3.3: Participation Rate for High Classes, Northern Areas, 1994(Age Group 13-14 Years)

Males FemalesDistrict Population Enrollment Rate Population Enrollment RateGilgit 4895 2074 42% 4570 967 21%Ghanche 2399 395 16% 2349 4 0%Diamer 3959 730 18% 3648 20 1%Ghizer 2363 1567 66% 222 113 51%Skardu 4785 1093 23% 4822 140 3%Total 18401 5859 32% 15611 1244 8%

Source: Directorate of Education, NA and AKESP for enrollment; National Institute for Population Studies andWorld Bank population projections from 1981 Census for 1994.

Table 4.1: Enrollment By District and Main Providers, Northern Areas, 1994Distnct/Level Govemment AKESP Total

% Total % Total % Total % TotalPnimary Male Female Male Female Male Female Male Female Male Female

Gigit 12108 6493 86% 65% 2032 3528 14% 35% 14140 10021Skardu 11628 3697 100% 100% 11628 3697Diamer 10041 2064 100% 100% 10041 2064Ghanche 7023 1717 100% 100% 7023 1717Ghizer 5774 1584 72% 28% 2193 4145 28% 72% 7967 5729Total 46574 15555 92% 67% 4225 7673 8% 33% 50799 23228

MiddleGigit 4399 1585 98% 58% 106 1153 2% 42% 4505 2738Skardu 3110 601 100% 100% 3110 601Diamer 2753 116 100% 100% 2753 116Ghanche 2146 235 100% 100% 2146 235Ghizer 3056 233 92% 18% 262 1066 8% 82% 3318 1299Total 15464 2770 98% 56% 368 2219 2% 44% 15832 4989

HighGigit 2074 767 100% 79% 0 200 0% 21% 2074 967Skardu 1039 140 100% 100% 1039 140 °°

Diamer 730 20 100% 100% 730 20Ghanche 395 4 100% 100% 395 4Ghizer 1567 12 100% 11% 0 101 0% 89% 1567 113Total 5805 943 100% 76% 0 301 0% 24% 5805 1244

Source: Directorate of Education, Northem Areas; AKESP.

Table 4.2: Community School Enrollments, Northern Areas, 1995 (a)Primary Male Female Total % Female

Gigit 677 3010 3687 82%Skardu (b) 464 685 1149 60%Diamer 1018 928 1946 48%Ghanche 871 1343 2214 61%Ghizer 943 1048 1991 53%Total 3973 7014 10987 64%

CDSource: Directorate of Education, Northern Areas..(a) Community schools data is from February 1996 and includes all 250 schools. O

Thus far, community schools only serve primary classes.(b) Enrollment In community schools In Skardu district is underestimated, as approx. 1101 additional students S

were reported, but without differentiating by gender.

Table 5: Teacher Qualifications by District and Type of School, Northern Areas, 1995

LeveIfTraining Gilgit Skardu Ghanche Ghizer Diamer Total Grand TotalPrimary Schools Male Female Male Female Male Female Male Female Male Female Male FemaleProf.+ Academic/(a) 51 10 100 5 57 1 72 3 109 7 389 26 415Academic Only 50 29 57 17 42 9 49 0 65 5 263 60 323Neither 7 8 0 0 2 3 3 0 65 6 77 17 94Total Primary 108 47 157 22 101 13 124 3 239 18 729 103 832% Trained (b) 47% 21% 64% 23% 56% 8% 58% 100% 46% 39% 53% 25% 50%% Untrained 53% 79% 36% 77% 44% 92% 42% 0% 54% 61% 47% 75% 50%

Middle SchoolsProf + Academicl(c) 49 17 42 8 22 0 33 0 54 1 200 26 226Academic Only 53 11 28 26 24 0 25 0 60 2 190 39 229Neither 56 30 38 3 28 0 25 0 60 20 207 53 260Total Middle 158 58 108 37 74 0 83 0 174 23 597 118 715% Trained (d) 31% 29% 39% 22% 30% - 40% 31% 4% 34% 22% 32%% Untrained 69% 71% 61% 78% 70% - 60% 69% 96% 66% 78% 68%

Source: Directorate of Education Statistics, 1995a) Prof = PTC training or above; Academic = Matric (Grade 10) or above.b) Trained Is defined as having academic and professional credenbals appropriate to level of teaching.c) Prof = CT or above; Academic = Grade 12 or above.d) This table may overstate the number of "untrained" teachers at the middle level, since a percentage of teachers in middle

schoolk teach at the primary level. Information is not available on teachers by level, however.

Table 6: Student/Teacher Ratios inGovernment Schools, Northern Areas, 1996

Students(a) Teachers(b) Ratio (c)Primary

Male 54900 729Female 15986 103Total 70886 832

MiddleMale 16837 597Female 5321 118Total 22158 715

HighMale 5905 1116Female 1627 274Total 7532 1390

Gr. Total 100576 2937 34.24

Source: Directorate of Education, NA. O (a) Students are by level, not location (numbers by location are unavailable). (9(b) Teachers are by location not level (numbers by level are unavailable). 1 S(c) Given tt there are primary students in all three locations (primary, middle and high 0

schools) only an overall estimate of the studenttteacher ratio is possible.

50ANNEX IPage 5 of 12

Table 7: Educational Institutions in the Northern Areas, By Type and District, 1995Type DistrictGoverment Gilgit Skardu Diamer Ghizer Ghanche TotalPrimary 83 187 149 65 74 558Boys 58 155 127 58 61 459Girls 25 32 22 7 13 99

Middle (a) 37 36 34 11 15 133Boys 27 29 28 11 14 109Girls 10 7 6 0 1 24

High (a) 34 23 15 8 11 91Boys 26 20 14 7 10 77Girls 8 3 1 1 1 14

Total 154 246 198 84 100 782

AKESP 55 0 0 71 0 126Military 3 4 1 0 0 8Private (b) 31 4 0 4 5 44Dini Madrasa 0 2 5 2 1 1.0Municipal 0 1 0 0 0 1Foji Foundation 1 0 1 0 0 2SAP/Community 48 50 52 50 50 250

Grand Total 292 307 257 211 156 1223

Source: Directorate of Education, Northern Areas

(a) As in the rest of Pakistan, both middle and high schools include primary classes.

(b) These numbers are not based on a school census and may be underestimated.

Table 8: Physical Condition of Existing Govemment Schools, NA, 1995Total No. of Shelterless Need Major Good/FairSchools Schools % Repairs % Condition %

Primary 558Boys 459Girls 99

Middle 133Boys 109Girls 24

Total 691 170 25% 267 39% 254 37%

Source: Directorate of Education, Northem Areas; Project Preparation estimates.

51ANNEXJPage 6 of 12

Table 9: Summary ratios, Northern Areas, 1994Enrollment Participation Female as StudenVTeacher Student/School StudenVClassroom

Rate % of Enroll. Ratio (a) Ratio (b) Ratio (c)Primary 74027 55%Male 50799 74% 69%Female 23228 35% 31%

Middle 20821 36%Male 15832 54% 76%Female 4989 18% 24%

High 7103 21%Male 5859 32% 82%Female 1244 8% 18%

Total 101951 45% 29% 34.2 (d) 130.4 n.a.

Source: Directorate of Education, Northern Areas.Note: Enrollments, participation rates, and gender ratio include AKESP schools.(a) 1995 data, Govemment schools. This is an overall estimate, since information is only available on students by level

and teachers by location. Estimate only encompasses govemment schools.(b) 1995 data, Govemment schools. Here too, only an overall estimate is possible

(since primary students are found in primary,middle, and high schools).(c) Not available.

PAKISTAN NORTHERN EDUCATION PROJECTAZAD JAMMU AND KASHMIR EDUCATIONAL STATISTICS

Table 10: Trends in Total Enrollment by Level and Year, AJK, 1992-95 (a)

Primary K-V (b) Middle VI-VMII High IX-XYear Male Female Total % growth Male Female Total % growth Male Female Total % growth1992 202600 169214 371814 62451 30096 92547 20105 8704 288091993 214360 176813 391173 5% 67328 40310 107638 16% 25109 8911 34020 18%1994 225231 184431 409662 5% 71382 39567 110949 3% 26125 12123 38248 12%1995 231851 191210 423061 3% 74715 42203 116918 5% 27621 12900 40521 6%

Source: Department of Education, AJK(a) Private school enrollments are not Included (unavailable).(b) Under-age students are Included.

Table 11: Elementary Enrollment and Gender Balance by District, AJK, 1994-95

Primary K-V (a) Females Middle Vl-VIII FemaleDistrict Males Female Total as %Total Males Female Total as %TotalMuzzafara 53912 39312 93224 42% 16159 7035 23194 30%Poonch 50138 47309 97447 49% 17744 12128 29872 41%Bagh 34320 26978 61298 44% 11155 5695 16850 34%Mirpur 46852 41778 88630 47% 16034 10493 26527 40%Kotli 46629 35833 82462 43% 13623 6852 20475 33%Total 231851 191210 423061 45% 74715 42203 116918 36%

Source: Department of Education, AJK: EMIS(a) Under-age students are included (approx. 9% of total primary enrollment). CD

meJ

ANNEX I

Page 8 of 12

Table 12.1: Participation Rate for Primary Classes, K-V, AJK, 1995(Age Group 4-9 Years)

Males FemalesDistrict Population Enrollment Rate Population Enrollment RateMuzzaf. 50801 53912 106% 48321 39312 81%Mirpur 49641 46852 94% 47101 41778 89%Bagh 35112 34320 98% 33304 26978 81%Poonch 51047 50138 98% 48451 47309 98%Kotli 43862 46629 106% 41620 35833 86%Total 230463 231851 101% 218797 191210 87%

Source: Department of Education, AJK; EMIS 1994-95NIPS and World Bank population projections from 1981 Census for 1 995.Note: 'Under-age" students are included in primary enrollment statistics.

Table 12.2: Participation Rate for Middle Classes, AJK, 1995(Age Group 10-12 Years)

Males FemalesDistrict Population Enrollment Rate Population Enrollment RateMuzzaf. 22608 16159 71% 21767 7035 32%Mirpur 21766 16034 74% 20953 10493 50%Bagh 14978 11155 74% 14414 5695 40%Poonch 21478 17744 83% 20692 12128 59%Kotli 18607 13623 73% 17915 6852 38%Total 99437 74715 75% 95741 42203 44%

Source: Department of Education, AJK EMIS 1994-95NIPS and World Bank population projections from 1981 Census for 1995.

Table 12.3: Participation Rate for High Classes, AJK, 1995(Age Group 13-14 Years)

Males FemalesDistrict Population Enrollment Rate Population Enrollment RateTotal 61698 27621 45% 59494 12900 22%

Source: Department of Education, AJK; EMIS 1994-95NIPS and World Bank population projections from 1981 Census for 1995.Note: Breakdown of enrollment data by district is not available.

54 ANNEX-1Page 9 of 12

Table 14.1: Student/Teacher Ratios by Table 14.2: StudentVTeacher Ratios by LocationLevel; Government Schools, AJK, 1994/95 Government Primary Schools, AJK, 1995-96

Students(a) Teachers(b) Ratio(c) Students(a) Teachers(b) Ratio(c)Primary PrimaryMale 231851 6930 33.46 Male 141581 3292 43.01Female 191210 4521 42.29 Female 122501 2540 48.23Total 423061 11451 36.95 Total 264082 5832 45.28

MiddleMale 74715 3603 20.74 Source: Department of Education AJK; EMISFemale 42203 1993 21.18 (a) Students by Location (i.e. primary schools)Total 116918 5596 20.89 (b) Teachers by Location

High (c) Overall ratio by location.Male 27621 2309 11.96 Note: A small number of schools are still missingFemale 12900 1198 10.77 from the 1995/96 data.Total 40521 3507 11.55

Gr. Total 580500 20554 28.24

Source: Department of Education AJK; EMIS 1994-95.

(a) Students are by level, not location.(b) Teachers are by level, not location.(c) Ratio is overall by level.

Table 13: Teacher Qualifications by District and Type of School, AJK Government Schools, 1995196 (a)

Level/Training Muzzafarabad Poonch Bagh Mirpur Kotli Total Grand TotalPnmary Schools Male Female Male Female Male Female Male Female Male Female Male FemalePTC 575 367 269 377 203 162 345 246 316 252 1708 1404 3112CT 195 41 217 81 140 31 174 11 190 12 916 176 1092BEd 25 2 101 2 41 2 64 0 59 1 290 7 297MEd 0 0 0 0 2 0 0 0 2 0 4 0 4Other 66 14 15 5 7 0 12 6 10 0 110 25 135Untrained 112 185 22 216 42 153 55 208 33 166 264 928 1192Total Primary 973 609 624 681 435 348 650 471 610 431 3292 2540 5832% Trained (b) 88% 70% 96% 68% 90% 56% 92% 56% 95% 61% 92% 63% 80%% Untrained 12% 30% 4% 32% 10% 44% 8% 44% 5% 39% 8% 37% 20%

Middle SchoolsPTC 222 149 144 212 154 117 177 158 137 126 834 762 1596CT 220 133 209 228 133 116 158 114 131 91 851 682 1533BEd 223 64 270 94 134 38 217 68 182 32 1026 296 1322MEd 2 2 0 0 1 0 1 1 0 0 4 3 7Other 40 37 5 9 14 8 12 14 18 3 89 71 160Untrained 56 93 216 14 38 112 33 179 22 117 365 515 880Total Middle 763 478 844 557 474 391 598 534 490 369 3169 2329 5498%Trained (b) 93% 81% 74% 97% 92% 71% 94% 66% 96% 68% 88% 78% 84%%Untrained 7% 19% 26% 3% 8% 29% 6% 34% 4% 32% 12% 22% 16%

Source: Department of Education Statistics; EMIS(a) These 1995-96 figures are still missing a small number of schools;(b) Trained is defined as having academic dnd professional qualificatons appropriate to level of teaching.

Unlike the NA, AJK is able to classify teachers by level as well as locadon.

H

56 ANNEX 1Page 11 of 12

Table 15: Educational Institutions in AJK by Type, 1995Government Private (a) Total

Primary 4373 212 4585Boys 2363Girls 2010

Middle (b) 855 70 925Boys 445Girls 410

High (b) 441 24 465Boys 299Girls 142

Grand Total 5669 306 5975

Source: Department of Education, AJK; Private Schools Association, Muzzafarabad.(a) Private schools are normally co-educational, with a predominance of boys.(b) As in the rest of Pakistan, middle and high schools house primary classes.

Table 16: Physical Condition of Existing Government Schools, AJK, 1995Total No. of Shelterless Dangerous UsableSchools Schools % Schools % Schools %

Primary 4373 1101 25% 548 13% 2724 62%Boys 2363 555 23% 384 16% 1424 60%Girls 2010 546 27% 164 8% 1300 65%

Middle 855 25 3% 113 13% 717 84%Boys 445 14 3% 67 15% 364 82%Girls 410 11 3% 46 11% 353 86%

Total 5228 1126 22% 661 13% 3441 66%

Source: Department of Education, AJK; EMIS 199495.

57 ANINEX IPage 12 of 12

Table 17: Summary ratios, AJK, 1994-95Enrollment Participation Female as Student/Teacher Student/School Student/Classroom

Rate % of Enroll. Ratio (a) Ratio (b) Ratio (c)Primary 423061 94% 36.95 60.39 56.27Male 231851 101% 55% 33.46 59.92 55.37Female 191210 87% 45% 42.29 60.95 57.35

Middle 116918 60% 20.89Male 74715 75% 64% 20.74Female 42203 44% 36% 21.18 ----

High 40521 33% 11.55 -----Male 27621 45% 68% 11.96 -----Female 12900 22% 32% 10.77 -----

Total 580500 76% 42% 28.24 102.4

Source: Department of Education, AJK; EMIS(a) Govemment schools. Ratio is by level rather than location - student/teacher ratios are higher in

primary schools.(b) Government schools. Ratio compares number of children physically located in primary schools to number of primary

schools. Number of children physically located in middle schools and high schools is unavailable.(c) Government schools. Ratio compares number of children physically located in primary schools to number of primary

school classrooms. Similar information is not available at middle and higher levels.

58

ANNEX 2Page 1 of 8

PAKISTAN

NORTHERN EDUCATION PROJECT

Financial Evaluation

A. Government Expenditures in Education

1. Government spending on education has been extremely low in the Northern Areas (NA)and Azad Jammu and Kashmir (AJK). Low historical spending in the NA has resulted in low literacylevels, poor education assets and low student completion and achievement. The strength of theteaching force has declined during the past decade. The overall quality of education is low by anystandard, and both physical and human resources are thinly spread.

2. A comparison of the education expenditures in AJK with those of other provinces inPakistan, reveals that the situation in AJK contrasts sharply with the greater focus attached to primaryand middle school education in the provinces. While AJK's share of elementary education ineducation expenditures is about 37 percent, Sindh and NWFP are spending about 52 percent and 48percent (1992-93) respectively in the primary sector alone. Punjab and Balochistan are earmarking aneven higher proportion (about 56 percent of the education sector resources) to the primary level.Despite the fact that AJK has a more mature educational system with a higher percentage of childrenat the more expensive secondary level, allocations at the elementary level still appear low. Accordingto the 1994-95 AJK EMIS figures, 93 percent of the children are in elementary schools, yet this levelreceives only 37 percent of the education expenditures.

3. The education sector expenditures in NA and AJK represent a small part of the totalFederal (GOP) expenditures--only about one percent in 1995-96. Both areas, however, rely veryheavily on GOP transfers for financing their expenditures. All funding for the NA--both developmentand non-development, is allocated through the KANA/SAFRON Ministry. The AJK governmentinternally generated resources cover only 35 percent of its overall expenditures while GOP financesthe other 65 percent. In 1995-96, allocations to education amounted to about 20 and 24 percent oftotal public sector allocations in NA and AJK respectively (development and non-development) (Table1).

59

ANNEX 2Page 2 of 8

Table 1. Total and Education Budgets in NA and AJK(Rs. million)

1991-92 1992-93 1993-94 1994-95 1995-96(R.E.) (B.E.)

NORTHERN AREAS

Education Expenditures 177 198 256 308 315Total NA Expenditures 1,057 1,245 1,254 1,486 1,560% Education/Total 17 16 20 21 20

AZAD JAMMU & KASHMIR

Education Expenditures 1,019 1,111 1,197 1,352 1,432Total AJK Expenditures 4,010 4,545 4,597 5,675 5,921% of Education/Total 25 24 26 24 24

1" Total and Education Expenditures include development and non-development (recurrent) categories.

Source: Budget documents, ADP (various years) and mission estimates.

B. Development Expenditures

4. During the past five years, Education Development Expenditures have increased in theNA. Education Development Expenditures as a share of the NA Development Expenditures (ADP)has fluctuated from 7.6 percent in 1992-93 to above 17.0 percent in 1994-95. The average share forthe period was 12.5 percent. While Development Expenditures grew at an annual average rate ofabout 8.0 percent during 1991-92 to 1995-96, Education Development Expenditures increased at thehigher average annual rate of 20.5 percent. The share of Elementary Education DevelopmentExpenditures in the Education Sector Development Expenditures rose from 45.8 percent in 1991-92 to79.0 percent over the 1994-95 and 1995-96 years. The Elementary Education DevelopmentExpenditures average annual growth rate of almost 50.0 percent for the five-year period, reflects theincreased SAP allocations to the sector (Table 2). These funds however, represent extremely smalland insufficient amounts when compared with the sector's acute needs.

5. In AJK, Education Development Expenditures have declined in the recent past.Education Development Expenditures as a share of Development Expenditures (ADP) averaged 14.0percent in 1991-92 and are estimated at 8.4 percent in 1995-96 (Table 2). In fact, while Development

60

ANNEX 2Page 3 of 8

Expenditures grew at an annual average of 18.2 percent during 1991-92 to 1995-96, EducationDevelopment Expenditures increased at an average annual rate of only about 2.7 percent. The shareof Elementary Education Development Expenditures in the Education Development Expenditures,however, rose from about 52.0 percent in 1991-92 to 62.3 percent in 1995 (fable 2). This is partlydue to expenditures financed under the recently completed OPEC project and the ongoing FloodRestoration project.

Table 2. Education Development Expenditures(Rs. million)

1991-92 1992-93 1993-94 1994-95 1995-96 Average"(R.E.) (B.E.) Rates(%)

NORTHERN AREAS

Total Dev. Expenditure 580 742 593 653 743 7.9Education Dev. Expenditure 55 56 80 112 110 20.5Elementary Dev. Expenditure 25 23 59 91 87 49.9Education/Total (%) 9.5 7.6 13.5 17.2 14.7 12.5Elementary/Education (%) 45.8 40.5 74.1 81.6 79.0 64.2

AZAD JAMMU & KASHMIR

Total Dev. Expenditure 906 904 1,075 1,620 1,675 18.2Education Dev. Expenditure 127 125 124 127 141 2.7Elementary Dev. Expenditure 66 64 62 72 88 8.1Education/Total (%) 14.0 13.8 11.5 7.8 8.4 11.1Elementary/Education (%) 51.8 51.3 49.9 57.1 62.3 59.5

" Average rates indicate either average growth rates or average shares during the period.

Source: ADP documents, SAP Operational Plans, Department of Education (AJK), Directorate ofEducation in NA and mission estimates.

61

ANNEX 2Page 4 of 8

C. Recurrent (Non-Development) Expenditures

6. Recurrent spending on the elementary level is lagging behind the other subsectors inboth regions. Elementary Non-development Expenditures increased at an average annual rate of 14.2percent in the NA, while Secondary (and College) Non-Development Expenditures grew at an annualaverage rate of 16.7 percent. The share of elementary non-development expenditures averaged about64.0 percent of the education sector non-development expenditures (Table 3). Despite the growth ofrecurrent expenditures in the education sector in AJK, averaging 9.7 percent per year between 1991-92 and 1995-96, spending on the elementary education level has also lagged behind secondary andhigher levels. Elementary Non-Development Expenditures increased at an average rate of 8.6percent, while College Non-Development Expenditures grew at an average annual rate of 14.1percent. The share of Elementary Non-Development Expenditures in the Education Non-Development Expenditures declined from about 36.0 percent in 1991-92 to 34.7 percent in 1995-96(Table 3). During the same period, the share of Secondary Non-Development Expendituresincreased.

Table 3. Education Recurrent (Non-Development) Expenditures(Rs. million)

1991-92 1992-93 1993-94 1994-95 1995-96 Average"(R.E.) (B.E.) Rates(%)

NORTHERN AREAS

Non-Dev. Education Expenditures 122 142 176 196 206 14.3of which Elementary 81 92 117 114 135 14.2

Secondary2 38 47 56 78 65 16.7Administration 3 3 4 4 5 14.7

Elementary/Education(%) 66.7 64.9 66.3 58.2 65.8 64.4Secondary/Education(%) 30.9 32.9 31.5 39.6 31.7 33.3

AZAD JAMMU & KASHMIR

Non-Dev. Education Expenditures 892 986 1,073 1,226 1,292 9.7of which Elementary 322 365 400 436 448 8.6

Secondary 377 416 444 524 552 10.1College 108 125 136 163 183 14.1Other 85 80 93 103 109 6.7

Elementary/Education(%) 36.1 37.0 37.3 35.6 34.7 36.1SecondarylEducation(%) 42.2 42.2 41.4 42.8 42.7 42.3

" Average rates indicate either average growth rates or average shares during the period.a Includes Colleges.

Source: Budgets (various years), SLP, EMIS and mission estimates).

62

ANNEX 2Page 5 of 8

7. One of the most critical problems in the education recurrent expenditures is the dominance ofthe salary component. In AJK there are virtually no budgetary provisions for non-salary inputs, such asrepairs, maintenance, instructional materials, and so on. Recently, a provision of equipment (furniture, sportsgoods) amounting to Rs.35 million for 4,119 primary schools was included in the ADP. One of the reasonsfor the high proportion of dangerous schools is the combined effect of poor quality of construction and theinadequate allocation of funds for maintenance and repairs. In the NA, non-salary inputs in the elementaryeducation non-development expenditures have increased--they represented an average 4.5 percent ofelementary expenditures over the past five years; non-salary inputs totalled approximately 12.0 percent of theelementary non-development allocations in 1995-96. This level of non-salary allocations needs to besustained.

8. When compared with other provinces, per-student government recurrent spending at theelementary level is very low, especially in AJK. Figures for 1992-93 show AJK with the lowest governmentper-student recurrent expenditure in Pakistan (Rs.970) compared to Sindh (Rs. 1,314) and Balochistan(Rs. 1,528). Per-student recurrent spending in the NA was about Rs. 1,277 per elementary student (equivalentto about US$ 4 per month per student) and Rs. 10,316 per secondary student (equivalent to US$35 per monthper student in 1994-95 (Table 4). Low per-student recurrent spending is due for the most part to the lack ofnon-salary government spending on maintenance, learning materials for students and teachers and othereducational inputs.

Table 4: Per Student Recurrent Costs in Elementary Education(Rs.)

Province/Area 1991-92 1992-93 1994-95

Punjab 1,320 1,388 NASindh 1,173 1,314 NANWFP 953 1,044 NABalochistan 1,309 1,528 NAAJK 905 970 1,070NA 961 1,059 1,227

Source: Mission Estimates.

63

ANNEX 2Page 6 of 8

D. Financial Impact of the Project

9. If the governments' current policy of focusing on improving the access and quality ofelementary education is to be implemented, the level of educational expenditures that would be neededin the next few years will be significant. In the NA, a large proportion of the needed expenditures atthe elementary level, to be financed under the Northern Education Project (NEP), representinvestments in access and quality improvements which will have important pay-offs in the mediumand longer term, and without which the educational system will remain stagnant and call for muchlarger investments in later years. Increased allocations to elementary education in AJK are alsonecessary to make up for the low quality and the deficits in education "stocks"; low levels of spendingand continued focus on the expansion of education coverage have resulted in low student achievementand poor education assets, such as inadequately trained teachers, dangerous and poorly maintainedfacilities and lack of school equipment. Increased government financing allocated to interventions toimprove quality and equitable access, must be done in conjunction with efficiency improvements.Efficiency will be increased by improving the utilization of existing resources through gradualreductions in unproductive spending, and by increasing linkages with the community.'

10. The share of education in the total ADP will need to increase over the next five years.If the share of education development expenditures were kept at the current average of about 13percent in the NA and 11 in AJK (Table 2), the program of improvements in the elementary levelwould not be financially possible. The share of education in the ADP will need to be maintained atan annual average of about 17 percent and 11 percent of the total ADP in the NA and AJKrespectively. This means that the education development allocations will need to rise at an averageannual rate of about 18 p2ercent and 17 percent in the NA and AJK respectively over the proiectperiod (Table 5).

11. The declining trend in the recurrent (non-development) spending at the elementaryeducation level needs to be reversed. In the NA, the elementary education non-developmentallocations will need to increase at an average of 11 percent in real terms. Non-salary allocations

1 Efficiency efforts supported by the project include the application of merit-based criteria forteacher hiring, gradually eliminating the practice of government financing of pre-service teachertraining for employed government teachers, and redeployment of staff to meet current classroomneeds or to strengthen quality inputs.

PAKISTAN

NORTHERN EDUCATION PROJECT

Table 5: Education Budgets Over Life of NEP Project"(Constant Rs. million)

1996-97 1997-98 1998-99 1999-00 2000-01 2001-02 Five-Year Avg. Year

(Base Year) Total % Increase

NORTHERN AREAS4-t~

Education ADP 150.5 220.0 247.3 257.9 344.9 323.0 1,393.1 17.9

of which Elementary 77.9 144.3 146.4 163.5 218.5 204.7 877.4 25.1

Education Non-Development 240.9 263.3 293.0 324.9 359.3 398.9 1,639.5 10.6

of which Elementary 156.5 171.1 190.5 211.2- 233.5 259.3 1,065.6 10.6

of which non-salary 18.8 20.5 22.9 25.3 28.0 31.1 127.8 10.6

AZAD JAMMU AND KASHMIR

Education ADP 141.4 195.2 255.3 323.3 301.5 282.4 1,357.7 16.5

of which Elementary 88.1 121.7 159.0 201.4 187.8 175.9 845.8 16.5

Education Non-Development 1,414.3 1,511.6 1,651.7 1,827.8 1,985.5 2,166.7 9,143.2 8.9

of which Elementary 509.2 574.4 660.7 731.1 794.2 866.7 3,627.1 11.2

of which non-salary 25.5 34.5 46.2 58.5 71.5 86.7 297.4 27.9

Includes on-going schemes, NEP project and enhanced non-salary allocations to the elementary subsector.

00

65

ANNEX 2Page 8 of 8

will need to be maintained at the 1995-96 level of 12.0 percent of the elementary educationallocations. In AJK, elementary education non-development allocations will need to increase fasterthan for the sector as a whole, 11 percent versus 9 percent in order to make up for the recentdeclines. Non-salary allocations, practically non-existent at present, will need to grow at an averageof about 28 percent (Table 5).

12. The increases in the AJK and NA education budgets are proportionally large whencompared with the very low current allocations, but very modest in absolute terms. These aremarginal increases within the context of the total federal budget and would be financially viable. Theeducation sector development expenditures in NA and AJK represent a very small part of the totalFederal development expenditures--only about one quarter of one percent in 1995-96. The projectededucation sector allocations (inclusive of the NEP project) required during 1996-97 to 2001-02 wouldincrease the above mentioned share to less than one half of one percent. Therefore, the increasesplanned for the NA and AJK education sector budgets as a part of the overall budget are extremelysm=all and well within the capacity of the Federal government.

13. The NA Directorate of Education and the Department of Education of AJK haveprovided policy statements (Annexes 4 and 5) which include, in the governments' own words, manykey reforms and commitments to increased quality and efficiency, equitable access, strengthenedplanning and supervision activities and support to the participation of communities in education. Mostof these reforms are supported by the NEP and would only materialize if supported by increasedallocations to the education sector in general, and the elementary subsector in particular. Thegovernment commitment to the provision of the additional budgetary resources above (which includethe resources being financed by IDA) will be confirmed at IDA-Government negotiations.

14. With regard to the sustainability of project investments beyond the life of the project, thelevel of recurrent resources required to sustain quality-improvement, institutional development, andinfrastructure investments is likely to be low. Increased involvement of communities in theconstruction and/or maintenance of school buildings is expected to generate additional resources,improve the communities' sense of ownership of an responsibility for school property, and preserveinvestments over a longer time period through improved and more regular maintenance routines. Theheaviest potential burden on future NA education budgets may be the need for continued support tocommunity schools. Although it is the intent of the DOE to experiment with mechanisms to makecommunity schools virtually self-sustaining, this may not be a realistic goal, particularly in thepoorest communities. Nevertheless, even if the DOE were to have to assume the full cost ofadditional financial support to a maximum of 800 schools receiving support under the project in theform of a per-student subsidy, the yearly costs is estimated to be approximately four percent of thetotal program budget in the final year of the program, or six percent of the recurrent (non-development) resources during the same year. This level of effort is considered financiallymanageable, and a relatively light burden given that community school enrollments are projected tomake up approximately 23 percent of total enrollments by the final year of the program. SAP/SAPPpolicy and financial support (particularly with regard to recurrent budgets and non-salary spending)are also expected to enhance project sustainability.

66

ANNEX 3Page 1 of 9

PAKISTAN

NORTHERN EDUCATION PROJECT

Community Participation and NGOs in the Northern Areas and Azad Jammu and Kashmir

I. Northern Areas

1. Background. There are four main factors that influence the environment for communityparticipation in education in the Northern Areas. First, given their extreme isolation, ruralcommunities in the NA have developed a strong tradition of self-reliance. Second, governmentservices are limited, understaffed, and chronically underfunded, which has meant both thatcommunities have had to rely more upon themselves and that the government has had to find creativeand non-traditional ways to accomplish specific objectives. Third, community demand for educationis high; and fourth, there is a strong NGO presence in the form of the Aga Khan DevelopmentNetwork (AKDN).

2. The AKDN consists of four associated organizations, all of which receive some form ofsupport through the Aga Khan Foundation (AKF). The oldest of these is the Aga Khan EducationalService (AKESP), which runs 126 schools in the Gilgit and Ghizer districts. Originally, these schoolswere established as girls' schools in Ismaili communities. In more recent years, AKESP schools havebegun accepting boys at the primary level, as well as non-Ismaili children. AKESP schools chargetuition and are generally considered to offer better quality education than government schools.'These schools have had a strong effect on increased demand for education in general and girls'education in particular in the NA, although AKESP has not opened schools out of the heavily Ismailidistricts of Gilgit and Ghizer. In terms of current organizational directions, AKESP is interested inexpanding its technical and training functions, but is not interested in assuming the burden offinancing or day-to-day management of additional schools.

3. Other AKDN organizations include the Aga Khan Health Services, which runs clinics inthe Gilgit and Ghizer districts; the Aga Khan Housing Board (AKHBP), which for 12 years has run aself-help school construction program in cooperation with local communities in the Gilgit and Ghizerdistricts; and the Aga Khan Rural Support Program (AKRSP), which has a 15 year history ofmobilizing local communities and forming village organizations (VOs) to undertake self-help projects,including agriculture, water and sanitation, and microenterprise schemes. Unlike the other AKDNorganizations, AKRSP has worked in all five of the NA districts.

4. Government-AKDN cooperation in the education sector has taken a number of differentforms. The Directorate of Education (DOE) and AKESP jointly established a Field Based TeacherDevelopment Program in the early 1980s, which has been offering locally based training to bothAKESP and government teachers since that time. The Government and AKESP have also informallycollaborated on school location decisions, with the Government essentially relying on AKESP to cover

I Tuition fees charged by AKESP schools are far lower than those charged by other "private" institutions, andare heavily subsidized. Full and partial remission of fees is also available in AKESP schools for low-incomechildren.

67

ANNEX 3Page 2 of 9

a large percentage of girls' enrollment in the two districts where the organization operates. Morerecently, the Government and AKRSP collaborated in designing the community schools model underthe SAP program.

5. Besides the AKDN, there are a number of smaller NGOs and "welfare organizations"active in the NA. A group known as Nonhuhal has started a number of schools in the Nagar region,and the Jaber Bin Hayyan Trust runs another nine schools, the majority in Baltistan (Skardu). Insome of the wealthier communities (particularly those along the Karakoram Highway), groups ofparents and/or private entrepreneurs have set up their own schools on a fee-paying basis. The vastmajority of these are "English-medium" schools, in response to increased community pressure forEnglish rather than Urdu as the language of instruction.

6. The Community Schools Program. In 1993, the federal government announced thebeginning of the Social Action Program, or SAP, which was designed to support basic health, watersupply, and primary education throughout the country. The actual design of interventions andactivities was left to the determination of each province or area, although SAP did carry a mandatefor increased collaboration with local communities and NGOs. The NA are one of the places inPakistan where this mandate was taken most seriously. As of 1994, the DOE was faced with asituation in which no additional teacher posts had been authorized for the region since 1986, seriouslycurtailing the ability to open new schools or even adequately staff the existing ones. AKESP hadexpanded enrollments in existing schools, but was financially unable to open new ones. AKRSP,meanwhile, with its close ties to the village organizations, was sensitive to a growing unmet demandfor education. The result was a joint AKRSP-Government proposal to use the SAP monies toestablish "community schools" in partnership with village organizations.

7. Under the program, the government advertised the availability of funds to helpcommunities willing to start their own school. Once communities had expressed interest in responseto the advertisement, a series of dialogues were conducted with potential communities regardingprogram guidelines and mutual responsibilities. The dialogue process is a technique developed byAKRSP, and AKRSP local social organizers were frequently involved in accompanying the dialogueprocess. Basic criteria for eligibility included the following: (a) all schools to be established were tobe either coeducational primary schools, or girls' schools; (b) schools would established only whereeither: (i) no school currently existed; (ii) only a boys' school existed and parents were unwilling tosend their girls there; or parents were unable to send their children to a local school due togeographical, political or sectarian constraints; or (iii) a school was available but did not satisfydemand; (c) communities would have to provide a building for classes to take place; and (d) thecommunity would have to hire a teacher who met DOE criteria. DOE criteria for hiring teachersincluded the stipulation that a female teacher must be hired over a male unless there is no femalemeeting minimum academic criteria, which in the case of females was reduced to a grade 8 pass(matric for males). For its-part, the DOE undertook to: (a) deposit a "grant" of Rs. 100,000 in aninterest bearing account in the name of the community, the interest from which (about Rs. 1,400 permonth) would help pay the salary of the teacher; (b) provide initial training for the teacher; and (c)provide academic supervision. These agreements and responsibilities were incorporated into a Termsof Partnership which were signed by community representatives and the DOE.

8. The dynamism of the government-NGO-community partnership under the SAP programis evident from the results thus far. Over approximately a ten month period (between January and

68

ANNEX 3Page 3 of 9

October, 1995), 250 community schools were. opened -- a 55 percent increase in the number ofprimary schools under some form of government auspices in the NA. Pressure from communities toexpand the program has been intense and depending in part on funding, an additional 125-250 schoolsare slated to be opened before January 1997. As of project appraisal (March, 1996), enrollment inthe first 250 schools had reached 12,088 students, or approximately 16 percent of primaryenrollments in the regular government system.2 Of these new enrollments, almost 61 percent aregirls, and just under half of the teachers are female (compared with 14 percent female teachers in theregular government system). Based on the positive experience with the community schools programthus far, the DOE has made community participation a cornerstone of its educational priorities andstrategies for the future.

9. Despite the substantial achievements of the program, both the current design of theprogram and its fast pace of expansion raised a number of concerns and issues during the course ofNEP preparation. These include: (a) the financial sustainability of the initial grant given inflation;(b) the inflexibility of the grant mechanism to shifts in enrollment; (c) the need to establish minimumenrollment criteria; (d) the need to tighten site selection criteria, based on an objective informationsource; (e) quality concerns, including teacher recruitment criteria, training and managerial support toschool committees; (f) clarification of the definition of "community school" in terms of managementand fee structures; and (g) further developing a long-term strategy with regard to governmentresponsibilities to community schools, eligibility for upgrading to middle school status, and so forth.In response to these concerns, a team of different area specialists were jointly commissioned by theDOE, the Multi-Donor Support Unit for SAP, and IDA prior to appraisal to conduct a review of theprogram thus far and make recommendations for alterations to the program as appropriate. Thereview found that by and large program criteria had been applied as originally stated, verified that theprogram enjoys a high level of commitment on the part of parents, teachers, and DOE officials, andmade recommendations on a number of issues based on their findings. Recommendations from thereview were built into the final proposals for project policy directions and activities, as well asrevised program criteria (see below).3 Further adaptations are expected to take place in response tofurther experimentation and ongoing monitoring and evaluation during the project period.

10. Revised Program Criteria for Establishment of Community Schools. The reviewteam recommended that the original program eligibility criteria be maintained, with the exception ofthe consideration previously given to sectarian and political barriers. Priority criteria for awarding acommunity school would be:

(a) villages with no school;

b) villages with a boys' school but with barriers to co-education; or (b) school available butinaccessible due to geographic barriers; and

2 Comparison is based on numbers available from DOE on primary enrollments in regular government schoolsas of November, 1995.

3 See Azfar, Fasihuddin and Wheeler: "A Review of the Northern Areas Community School Programme underSAP." March 22, 1996.

69

ANNEX 3Page 4 of 9

(c) school available but does not satisfy demand (overcrowding).

11. The review team further recommended that some additional information be gathered andcriteria be applied within each of these previously defined priorities. Additional information to beconsidered in determining the long-term sustainability of the school as well as whether the abovecriteria apply include:

(a) data on the number of children, including those of school age, boys and girls in thevillage, using the union council definition of a village;

(b) data on the number of and distance to existing Government primary schools for boys andgirls, including community schools in the area.

12. These data will be readily available once a school mapping exercise is complete; in themeantime, however, efforts should be made to collect these data from existing sources (AKRSP,District DOE offices) and use them in weighing applications. Recommendations for additional criteriainclude:

(a) Establishment of a minimum enrollment level of 20 students if initial enrollment islimited to the first three grades; 30 if school serves all five grades;

(b) Limiting initial enrollment to grades LA, 1, and 2 for the first year of operation of thecommunity school. This would help ease the immediate burden of multiple classes onspace, teacher capacity, and DOE financial capacity to provide a second teacher.

(c) Limiting total enrollment to a 40 student to one teacher ratio, unless the DOE is able toincrease funding to provide for additional teacher(s) on a graduated scale, or the existingteacher agrees to operate on a double-shift system;

(d) Setting guidelines for the provision of a space for classes to be held, with the minimumacceptable being (14'x 24') in one or two rooms, to accommodate a maximum of 40students.

(e) Community agreement to manage the school in accordance with the Terms ofPartnership in writing. Part of this agreement would include the selection of a femaleteacher, where a matric pass female is available and is likely to stay in the village(already being applied).

13. In cases where there are more qualified applications than can be funded, preferencewould be given to districts with historically lower female participation rates. It should also be clearto communities from the outset of discussions regarding possible DOE support for a communityschool that the establishment of a school does not necessarily entail a guarantee of a school building.The criteria for allocation of school buildings to community schools would be separate, and wouldinclude information gained through a school mapping process to take place under the NEP.

70

ANNEX 3Page 5 of 9

14. These recommended changes to the program as it currently stands were discussed withthe government, the review team, and IDA, and were broadly agreed among the parties.

15. Support for Community Participation under the Northern Education Project.Because community participation is so central to the overall DOE strategy for education, all proposedcomponents of the NEP support increased community participation in some form. Under the accesscomponent, for example, it is proposed that all construction activities under the project incorporatecommunity participation. This strategy is expected to increase community commitment to maintainingthe newly constructed or reconstructed buildings, and is estimated to lower the total construction costsby approximately 30 percent. In order to institutionalize efforts at encouraging communityparticipation thus far, the project is also supporting the re-designation of a Deputy Director postwithin the DOE as Deputy Director for SAP and Community Mobilization. With regard to supportfor existing and future community schools, the NEP would provide support in a number of forms,including:

(a) Training for community school teachers. In accordance with the program agreedbetween the government and IDA, community school teachers would receive trainingthrough the Field Based Teacher Development program along with regular governmentteachers;

(b) Self-help construction support for eligible community schools. Proposed criteria foreligibility for building support are included in the community schools review, andinclude: (i) justification for building based on school-age population, distance to nearbyschools, and enrollment levels, as defined through a school mapping exercise; (ii)demonstrated ability of the community to run a school during a two year period,ensuring minimum enrollment and continuity of the teacher; and (iii) willingness of thecommunity to enter into cost-sharing arrangements under the program. Approximately450 community schools would receive permanent school buildings under the project;

(c) Additional financial support to community schools. The project would include funds tosupport community schools equal to approximately double the current grant amount oran estimated per-student subsidy of approximately Rs. 60 per month, based onassumptions regarding average enrollment and the rate of growth of community schools(up to a maximum of 800). Financial support would take the form of yearly grants toeligible schools. Eligibility criteria, grant amounts and funding mechanisms would beagreed on a yearly basis with IDA as part of the Annual Plan. Grant amounts wouldreflect differences in enrollment between schools, and could be used for, inter alia,payment of teacher salaries, purchase of school supplies, and building rental and/ormaintenance. Separate funds have also been budgeted for ongoing maintenance ofbuildings constructed or reconstructed under the project;

(d) Social organization/mobilization training for Directorate of Education staff. Field-basedAssistant District Education Officers (AEOs) in particular would receive regular trainingto enable them to work more effectively with village education and school managementcommittees, as well as with Parent-teacher associations (PTAs) in regular governmentschools. Training content would include introduction to materials to be used in trainingVECs and PTAs in basic school management techniques, including record keeping,

71

ANNEX 3Page 6 of 9

monitoring and following up on student and teacher attendance, and handling ofaccounts;

(e) Launching of a Community School Development Project (CSDP) as agreed by the DOEand AKESP. This pilot project will test different inputs, management structures, andfinancing mechanisms in a small sample of community schools (10) as a means ofidentifying alternative approaches to working with/supporting community schools.These lessons would then be incorporated into the ongoing community school program.

(f) Study tours and technical assistance. Although the NA are experimenting with theestablishment of community schools on a much wider scale than many provinces, thereare other experiences with community schools in Pakistan which might prove useful inthe further development of the community schools program. The project would supportthree brief study tours to look at such models, as well as technical assistance from withinPakistan and abroad to help in the development of the community schools program.

16. Increasing Community Participation in Existing Government Schools. Encouragedby the response to the community schools program, the DOE has also sought ways to encourage morecommunity involvement in existing government schools. A notification regarding the formation ofparent-teachers committees was recently issued, although further details regarding the membershipand responsibilities of these committees require further definition. The NEP would supportgovernment efforts in this area through: (a) provision of technical assistance to help further define theroles and responsibilities of parent-teacher committees; (b) social mobilization training for DOE staff(which would be relevant both for work with community schools and for efforts to enhancecommunity participation in existing schools); and (c) development of a training package for teachersand parents starting PTA committees. The project would also support increased communityparticipation through the construction component. All repair and rehabilitation to existing schoolbuildings would be done through a participatory model, and funds for building maintenance would begradually decentralized to PTAs.

17. Role of NGOs. For the most part, the role of NGOs in the project would be one ofproviding technical assistance and training, although NGOs directly involved in the provision ofeducational services may qualify for support under the community schools program under revisedcriteria. Both AKRSP and AKESP would be considered an integral part of the program, and wouldparticipate in the Project Steering Committee. In addition, AKRSP would: (a) provide support in theidentification of communities eligible for receiving community school funding, increase awarenessamong communities regarding program criteria; and to extent possible support the dialogue processleading up to the signed Terms of Partnership between the Government and the community; (b)provide social mobilization training for DOE staff; (c) in collaboration with the DOE (and AKESP),develop training materials to be used with VECs, school management committees, and PTAs, andtrain of Directorate of Education staff in their use; (d) to extent possible, provide technical support tothe DOE in training of VECs, school committees and PTAs. AKESP would: (a) help with theexpansion of field-based teacher training efforts through opening of additional government FBTDcenters, thus giving the government additional time to expand its own capacity; and (b) participate ina pilot project to develop the community schools program through experimentation with differentmanagement and financial mechanisms in a small sample of schools. Both organizations would alsoparticipate in the ongoing monitoring of the NEP through regular contact with Directorate of

72

ANNEX 3Page 7 of .9

Education staff at different levels; also playing a role (in conjunction with DOE staff) in annualreviews/field assessment of project implementation progress.

II. Azad Jammu and Kashmir

18. Background. As in the NA, AJK has a strong tradition of rural communitiescontributing labor and other resources to accomplish specific goals. The local government departmenthas long relied on community contributions of labor for water and sanitation projects, and to someextent in the financing and construction of school buildings. Unlike the NA, however, AJK does nothave a history of NGO involvement as intermediaries in such schemes, nor does it have a base ofcommunity or village organizations comparable to that developed by AKRSP in the context of theNA, with the exception of a number of village-based organizations in the district of Poonch, startedunder the auspices of the National Rural Support Program (NRSP). Several ongoing projects (theNorthern Resource Management Project, and the Neelum and Jhelum Valley Community Project)have incorporated community organizing components, but a recent review of these projects found thecommunity development components at a very preliminary stage.4

19. NRSP started up operations in the AJK district of Poonch in 1993. Nationally, NRSP'sobjective is to foster a country-wide network of grassroots organizations which enable localcommunities to plan and undertake their own development. A cornerstone of NRSP's strategy is tocollaborate with other agencies to utilize existing material and human resources. These agenciesinclude government departments, NGOs, international agencies, and credit institutions. Thus farNRSP has formed 138 village organizations in the district of Poonch, but there are as yet no plans toexpand to other districts.' In addition to NRSP, AJK also has a number of welfare organizations,which are mostly volunteer based and focus on a variety of social issues, from after-school programsfor youth to health care and adult literacy projects.

20. The results of a limited beneficiary assessment exercise conducted in AJK during projectpreparation revealed that there is significant community support for education.' Most parentsconsider education to be important, and the vast majority send their children to primary schools whereavailable (this is true for both boys and girls). Distance to education (sometimes even very shortdistances) is still perceived as a barrier to education, particularly for younger children. While parentsdo contribute energy, time, and financial resources to their children's schooling, the assessmentconfirmed that this is mostly done on an individual or ad-hoc basis. Parent involvement in andcontributions to schooling are higher in communities with an activist head-teacher or communitymember; in most schools sampled, however, there was no formal or established mechanisms forparental input into school issues beyond payment of the nominal school fees requested by the teacher.

4 See 'Community Participation in the Health Sector in Azad Jamnmu and Kashmir," Development andResearch Consultants, Pvt. for the World Bank, July 1995.

5 Since the district of Poonch was officially divided in the fall of 1995, NRSP is now technically working intwo districts.

6 See Halcrow Consultants, Ltd. 'Working Paper on Community Participation in AJK - Northem EducationProject". March 1996.

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ANNEX 3Page 8 of 9

Parents and community members interviewed clearly expressed interest in and concern aboutimproving the quality of education available to their children. There were differences of opinion,however, regarding who should be responsible for quality improvements (government orcommunities), and the quality of contact/dialogue between the government and communities hasvaried. Many parents cited the need for improvements to the physical aspects of the school. Somealso cited other problems, including non-availability of certain teaching specialties, politicalappointments of teachers, corruption in local government departments handling building constructionmatters, and a general lack of consideration of local community needs and preferences. One parentexpressed the opinion that the government and community members should sit down and discuss waysto improve the quality of education, but that "the govermnent doesn't listen to us."

21. Formation of School Committees under the NEP. The basic strategy for increasingcommunity participation in AJK under the NEP would be through the formation of school committeesat the village level. This strategy is consistent with a longstanding proposal for the formation ofvillage education committees under the Social Action Program (SAP) which has yet to be put intopractice in AJK. As part of the SAP Operational Plan for 1995-96, AJK proposed the formation ofvillage-level school committees as a means to encourage community participation in education. As ofNovember, 1995, a summary proposal concerning the formation of school committees had been sentto the Government for approval. Although this proposal is still vague with regard to the specificresponsibilities of these school committees and lacks an implementation strategy, it establishes thepolicy basis for further development of a school committee strategy.

22. It has been agreed that issuance of a notification is unlikely to be sufficient to ensure thecreation of active school committees. Social mobilization of communities and training for DOE fieldstaff, teachers, and school committee representatives would also be necessary inputs if the idea ofschool committees is to take hold. Given the difficulty of providing this type of training and supportto over 5,000 elementary schools in AJK, it was agreed that it would make sense to pilot the ideawith a small sample of schools under the NEP.7

23. Under the NEP pilot, the process of school committee formation would begin in a singledistrict (to be selected by the DPIEE) and would involve both the training of AEOs (and throughAEOs, teachers) in community mobilization techniques and the training of newly formed schoolcommittees in their responsibilities. Technical assistance (preferably through a contracted NGO orprivate company) in coordinating the community mobilization effort would be provided to the DOE inthe form of a project coordinator with a strong background in training and social mobilizationinitiatives. The community mobilization coordinator would be expected to divide his/her timebetween on-site training of AEOs and school committees in the pilot district, and wider educationefforts and reporting functions at the level of the DPIEE (for example, the arrangement of two studytours for policy makers and DPIEE and district staff to look at community mobilization effortselsewhere in Pakistan). To the extent that there are already other social mobilization efforts underway

I In light of overall cuts to the project post-appraisal, the decision was made to restrict the pilot to a singlediArict, rather than begin school committee formation in three districts as proposed at appraisal. If the pilot isjudged to be sufficiently successful at the time of the Midterm Review, it is hope that SAP funding may be usedto support an expansion to other districts.

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ANNEX 3Page 9 of 9

in the pilot district, the project coordinator and district-level AEOs would be responsible forcoordinating with existing efforts to the maximum extent possible.

24. Under the proposed design, the formation of school committees in the pilot districtwould at least initially be done in conjunction with the reconstruction of dangerous and building ofshelterless schools under the project. The reasons for making this connection are threefold: (a) first,the fact of an investment in physical infrastructure is likely to mobilize the community around theschool and school issues; (b) second, an organized school committee can help oversee the constructionprocess (although not necessarily the most technical aspects); and (c) one of the functions of theschool committee would be the ongoing maintenance of the newly constructed school, therebypreserving the initial value of the investment under the project. In view of the fact that the CivilEngineering Cell within the Department of Education does not have experience with communityparticipation in construction, the project would not necessarily follow a participatory approach to theconstruction itself. As has been the pattern in the past, however, communities would be asked todonate the land for the construction of currently shelterless schools. Other school committeeresponsibilities would include: fundraising and administration of government matching grants forschool building maintenance and purchase of learning materials; decision making regarding school-related investments or improvements; regular monitoring of student and teacher attendance; andsponsoring an annual community meeting to discuss educational issues and the progress of theschool.'

25. Schedule and Activities. Since school committee formation would be linked toconstruction activities under the project, committee organization in the field would not begin untilafter the completion of the school mapping exercise six months into project implementation. The firstsix months of the component would be dedicated to start-up activities, and wider efforts to familiarizeDPIEE and district staff with community mobilization concepts.9 Implementation of the pilot in theselected district would be undertaken during the first two and a half years of the project. Assuming afairly even distribution of school construction between the seven districts, a minimum of 50 schoolcommittees can be expected to be functioning in the pilot district by the time of the Midterm Reviewof the project. A decision as to whether to continue the pilot in some form, expand it, or terminate itwould be made at that time.

26. Role of NGOs. Given the relative lack of experience with community mobilizationtechniques within the Secretariat of Education, technical assistance in this area will be an importantfactor in the success of the proposed program. Either an NGO or a private firm with extensiveexperience in community mobilization would be most appropriate for such an assignment. Becauselocal AJK experience would also be an asset, such an arrangement might be considered with NRSP inPoonch, for example. The NGO contracted would be responsible for providing: (a) a componentcoordinator, to work at the level of the DPIEE as well as in the field in the pilot district; and (b)specialized short-term technical assistance if needed (for the design of training materials, forexample).

Additional suggestions for specific school committee responsibilities, membership, -and tenure were madeduring appraisal, and can be found in the final version of the appraisal mission aide-memoire (May 1, 1996).

9 These are further detailed in the aide-memoire of the project appraisal mission (May 1, 1996.)

75ANNEX 4Page 1 of 6

GOVERNMENT OF PAKISTANDIRE CTORATE OF EDUCATION N.As

GILGIT.

NORTIIERN AREAS

PRIORITIES AND STRATEGIES

IN ELEMENTARY EDUCATION

August 13, 1996

76

ANNEX 4Page 2 of 6

NORTIHIERN AREASPRIORITIES AND STRATEGIESIN ELEMENTARY EDUCATION

SUMMARY-.

Today, more than ever, the people of tile Northlern Areas lhave expressed that educationis their greatest need. Thus, the edtucation priorities and strategies of (lie Northern Areasreflect the Government's willingness to meet thc iteeds of its people, and to effectivelysupport clementary education throughout the region.

The socio-economic indicators in the Nortlern Areas are amongst the lowest in Pakistan.The litcracy rate of 15 percent is dramatically lower than the nationial average of 35-perent. Fcmalc literacy is a dismnal 3 percent compared to the male literacy rate of 24percent. Within the Northern Areas, therc is extreme disparity from one district toanother and within districts. There ihave been no new or additional teaching postssanctioned for the Northcrn Areas sincec 1986. Access to quatity education has been lowdue to the extreme remoteness of many valleys and villagcs. The Directoratc of Educationhas clearly recognized these problems ancl is comminttidcl to addressing them with aprogrammatic approach.

Tic priorities and strategies set forth lere provide the palh wlhich the Norihernr Areas willtake to mcct the needs of its people. The path is one which is consistenL with the faithideology and aspirations of this nation as a wholc. Il is a padt wh ich seeks to attainuniversal enrollinent in eleme:ntary education for all school-agcdl children in the Northernareas, particularly female, with increased community participation. In coijunction withthis objective, the Government has adopted thl following specific prioritics:-

I. Improve the quality of edutcation in order to increasc learnini achievements andcompletion rates in elementary cducation.

2. Increase cquitable access in eccmenitary education.

3. Strengthcn institutional capacity to plan, man.age, and supervise educationprograms, and;

4. Increase community participation awnd support to NGOs.

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ANNEX 4Page 3 of 6

These priorities are reflected in a mu3ii-facted stratcgy which addresses each and everyconcern in the provision of quality elementary education. Specifically, the strategies aredesigned to focus activities on providing access for femnales to clemlentary education,improving the skills and techniques of thc tcaching force, and strengthtning themanagement capacities of the DoE to cffectively deliver clementary education.

Through well-planned and effective implementatiorn, education will be carried forwardtihroughout the Northern Areas, providing access to quality edtucation as never beforewitnessed in the region. And with access to quality clementary education for the peopleof the Northern Areas, the coming g,eneration of citizens will be ablc to avail themselvesof opportunitics as never bcfore. experiencied. Throutgh planning, investment andconscience, tile people of the Nortleri Areas will increase tlhe level of tlieir contributionto Pakistan as a nation, helping to pave thc way for a iunified and peaceful future.

Thefollowino sets forth each educational priorities and the corresponding strategies whichthe Govcrnment will pursue in the imnmrediate futlre.

Priority I: Improvino the quslity of elententary educution in order to increaselearning .achieveinents and completioni rates in elementary ecitucation.

The qtuality of elementary cducation in tite Northenr Areas compares as among the lowestin the whole of Pakistan. Years of limitcd resources have prodtuced a system burdenedwith teaclhers wanting for proper training in tcaching metlhodologies and contlentknowledgc. a curriculum whichl does not promnole lcarniing ancd achievcnent, and anassessment system which focuscs less on ability and knowlcdige and more onmemorization. There is a backlog of approximately two tlhousanjd untrained Governmentteachers in the Northern Areas. As a result, ltie sttudcnts of the Northern Areas havesuffered in the face of students from otlher regions in 2aklistan. both at the elementarylevel and at higher, more competitive levels of ediucation.

Strategies:

To imnprove the quality of clemnentary education in tihe Norifern Areas, the governmentwill puirsuc the following strategies:

I . Expansion of a field-based teacher training nmodcl whichi will dceliver necessary trainingin modern teaching techniques to leachers working in remote reginns of the NorthernAreas.

78

ANNEX 4Page 4 of 6

2. Strengthening of the College of }d.ucation for women in Gilgit. and establishment ofa College of Education for womcII in Skardi, to offer greater opportunity for teacJiersand educationist to pursue higher sludies in tile teaching rield.

3. Supporting distance education for feinalcs, particularly through the Allamna lqbal Open.Univcrsity, so as to provide females with greater opportunities to pursue teachingqualifications.

4. Adaptation of field-based teacher training conccpts and tcchniques into the syllabus ofthe College of Education, is an effort Co improve the teaching technologies andmethodologies used in the classrooms. These concepts and technciqtues havc been provento bc the most useful and innovativc approach to education in the region, and have beentried and tested for over Len years.

5. Improvement of thc curriculum to rcflect the needs of thie Northern Areas, includingmulti grade learning approaches, gender-friendly texts, and local realities.

6. Improvcmcnt of the use of supplemenlary matcrials, audio-visual teaching aids, andother devices to support classroom instzizctioii.

7. Inprovement of the assessment system to improve lihc rclcvance and efficacy ofexamination processes. Thzis includes devoloping examinaiotis which truly tcst the skillsand abilities of students, and training tcachers ini examination procedures and techniquesof continucus assessment.

Priority 2: lncrcase equitable access in elementary edcicatioji.

Access to elementary education in the Northern Are;s is liimited bothl by geography andcapacity. Communities are disperscd so widrly that the costs of bluilding a school in eaciarea are prohiibitive. And in those areas where iltere are scihoois. enrollments exceed 39students per classroom.

Strategics:

1. Commencemenlt of a school mapping exercise to accurately ascertain the needs ofeducation intervcntioins.

2. Strengthening of the community school initiativc slarted under the Social ActionProgramme Primary Education Component, which provides funding for community-managed schools in low-access arzas.

3. Initroduction of a co-education policy at the primary level in order to increase accessfor girls at the primary level.

79ANNEX 4Page 5 of 6

4. Repair and reconstnicdion of existing school facilities.

5. Construction of new classrooms oni a participatory, sclf-help basis in partnership withcommunities throughout Ihe region.

6. Construction of two teacher training colleges for females, one in Skardu and one in

Gilgit, to increase the number of adequately traiined female teachers.

Priority 3: Strengthen institutional cap.tcity to plan, managc, and supervise education

programmes.

Currently, the administration and supervisioni for all goveniment educational institutions

from primary-to tertiary level, is the responsibility of the Directorate of Education. Thefive district offices supervise at the district level. The central and district offices are

inadequately staffed and equipped and management is hiihly centralized, the instittitionalcapacity-of the DoE to plan. manage, and supervisc edtucation programmes needs to be

strengthcned.

Strategies:

1. Strengthening the Directorate of Education, at ithe cOentral, district, and sub-districtlevel, through provision of additionall staff, coiliputir and commlunication equipment,appropriate training, and increased recurrent bud-cl.

2. Dccentralisation of school supervision by increasing thc number of field officers andproviding them with additional role of supervision rather than inspection.

3. Increased female participation at the administrative and supervision level by allocatingposts to female officers.

4. Establishment of a Northern Areas E.dtcntion Ma,aacmen Information System (EMIS)

to assist the DoE in better planning and management.

Priority 4: Increase community participation aid support to NGOs.

The community school initiative unider the Social Action Programme is a key to primaryeducation development in the Northern Areas wlhich will be expancied to provide greater

access to primary education. In addition to this programnc the DoE will work toencourage communities to actively parlicipate in cdcca(ion at the local level. Theparticipatory niodel of eduLcation is further culhanced by the participation of communitybased organizalions and NGOs. Several steps nieed to be taken in order to strengthencommunity participation and support to NCGOs.

80ANNEX 4Page 6 of 6

Strategies.

1. Increasing the amount of financial stipport to community schools.

2. Developing a strategy to providc permancnt school buildings to community schools.

3. Training community school teachers through ficid-based training programmes..

4. Social organization/mobilization training for DoE staff. In particular, field-based DoEofficers will be provided training with the collaboration of NGOs.

-5. Training of DoE staff in developing VillacEducation Committee (VEC) managementskills for community schools.

6. Initiating a Community School Development Project which will experiment with-ifferent mechanisms to strengthen the current community school model.

7. Support to smaller NGOs and comnmunity-based organiriations to further develop theseorganizations and their contribution to thc education sector in the Northcrn Areas.

8. Expand the role of non-govcriimental org-anisations (NGOs) in supporting educationalinitiatives tiidertaken by tihe DoE and cby local communities. hI particular, coordinationcommittees as appropriate will be established to deveiop a coordlinated approach towardsthe improvement of education.

81ANNEX 5Page 1 of 8

Elementary Education

PRIORITIES ANDINVESTMENTS

Azad Jammu & Kashmir

Education Secretariat, Azad Jammu & KashmirMuzaffarabadAugust, 1996

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ANNEX 5Page 2 of 8

ELJEMENTARY E)UCATIONPRIO()RIT'I!ES ANI) INVESTMENTS

AZAD)J.AN1MU & KASHIMIR

Introduction

It is admitted fact that education is the basic element to bring change in a society inrespect of economic, social and cultural development. Education plays a vital role inprosperity of a nation. Investment in education, as compared to other sectors, isconsidered to be more productive and having multi-fold retums. That is why education isgiven full attention in Azad Jammu and Kashmir. At present, AJ&K is leading other partsof Pakistan in case of literacy rate which is 46%. The participation rate at elementary levelin AJ&K is higher than thal "f other areas of Pakistan. Fortunately, the goal of UniversalPrimary Education is coming within reach and in the near future the target of UPE will beachieved.

The rapid expansion in setting up educational institutions was initiated in theSeventies, and as a result, presently each village of the area has got at least one primaryschool for children of school going age. This state of affairs can be declared as arevolution in the education system of AJ&K. Before independence (1947). the area nowcomprising Azad Jammu & Kashmir was the most backward area having only one InterCollege, 6 High, 26 Middle and 250 primary schools. This sorrow situation has entirelychanged, and at present there are 4,373 Primary, 855 Middle, 439 High and 35 HigherSecondary Schools. Besides these institutions there are 34 Inter Colleges, 29 DegreeColleges, one University and one Board of Intermediate and Secondary E.ducation. As faras teacher training is concerned there are IO Colleges of Education for ElementaryTeachers, one College of Education, one Agrotechnical Teachers' Training Centre, oneEducation Extension Centre and Centre for Curriculum Development.

Educational reforms and comprehensive policy initiatives have been carried outwith the passage of time since 1947. The major objective set forth in policy documentshas been to increase the literacy rate and universalize primary education, which is essentialfor a developing nation. The Government of Azad Jammu and Kashmir has successfiil_Xtried to implement these policies and the results are encouraging in respect of UPE andenrollment rates. But this is not an end in itself, several measures and initiatives are stillrequired to be undertaken for improvement and strengthening the expanded system ofeducation in AJ&K. Elementary education which is, today, considered to be the right ofevery citizen, is enjoying top priority in the educational set-up of the state. In spite ofmaximum efforts to uplift elementary education, further steps for improvement andstrengthening of the system still need to be carried out. For improving, strengthening and

83- ~~~~~ANNEX 5

Page 3 of 8

future planning of elementary education, it is necessary to determine certain priorities andto carry them out.

Priorities for Improvement of Elementary Education

(a) Improving the quality of elementary education.

(b) Increasing access and retention rate at elementary stage.

(c) Strengthening institutional capacity to plan, manage and superviseelementary education.

(d) . Encouraging community and NGOs to participate in school programs.

-Improving the Quality of Education

AJ&K has made remarkable progress in providing educational access to itschildren. As educational participation has expanded, it has become increasingly importantto focus on the quality of education provided by the schools. The fundamental meaning ofeducational quality is that students master the knowledge and skills which they need tobecome capable and productive members of society. In order for this to happen, all of thehuman and material resources of the educational system must focus on the central activityof education: the teaching and learning process that takes place in the classroom. TheGovernment of AJ&K, therefore, is dedicated to ensuring that the curriculum provided tostudents is designed with leaming in mind; that teachers are trained in effective teachingmethods and educated in the content of subject areas; and that student learning is assessedfrequently and effectively. To ensure that these goals are reached the following sectionidentifies specific problems in the quality of education, and strategies for addressing them.

General Problems

The following problems seriously affect the quality of education with the result -that learning achievement of students at primary level is lower than the national average.

- At present 23% of male primary teachers and 15% of male middle schoolteachers are untrained, compared to 50% of female primary and 33% of femalemiddle school teachers.

- Teacher Training Colleges (GCETs) need to be strengthened in terms ofphysical facilities and specialized teaching staff.

- Inservice teachers require support in teaching new curriculum and multi-gradeteaching.

- Single-teacher schools need additional teachers.

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- Specialized institutions in curriculum development (CRDC) and InserviceTraining (EEC) require increased level of resources for technical andmanagement capacity building.

- Instructional materials need to be developed and utilized by the teachers foreffective teaching.

- Specialized institutions for training and curriculum need to coordinate theiractivities.

- Techniques to assess student achievement need to be improved.

Strategies

To reduce the percentage of untrained teachers, maximum use of trainingopportunities available at Government Colleges for Elementary Teachers (GCETs) will beensured.

- Inservice training courses in integrated curriculum and other subject areas willbe offered both for primary and middle school teachers.

- Posts of teachers under training at GCETs will be reduced and shifted tosingle-teacher schools.

- Training packages, instructional materials and teacher guides will be developedand distributed among the teachers.

- EEC and CRDC will be strengthened through the provision of additional staff.equipment, technical assistance, and other resources.

- Curricula for classes 4-8 with relevant supporting materials will be developed.

- Training in textbook development and evaluation will be provided tocurriculum development staff

- An Inservice Education Committee comprising personnel from the Directorateof Elementary Education, GCETs, EEC and CRDC will be constituted toestablish effective coordination on training, curriculum development, andexaminations.

- Regional and international training and study tours will be provided to selectedpeople drawn from training colleges, CRDC and EEC.

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The system of assessment and examinanans both for students and teachersunder training will be improved.

Posting and transfer of faculty members and the admission of students inGCETs will be done with the consent of principals of these institutions.

Increasing Access and Retention Rate

Although participation in primary education is high, it is still the case in A1&K thatmany children do not successfully complete the full primary school cycle, and even fewerenter and complete the middle school level. Several factors constrain participation andretention of students in elementary education. In many cases, the physical environment ofthe schools is not conducive to good teachingflearning practices. The Govemment iscommitted to providing better physical facilities to address this need. At the same time,Government alone cannot meet the needs for improvement. Commtnity involvement isnecessary to strengthen Government's efforts. Community involvement can alsocontribute to improved access and quality in other ways. When parents and communityleaders take an interest in the schools, teacher peiformance rises and parental support fortheir children's education increases. Community involvement can directly enhance thequality and relevance of education, as schoois incorporate the talents and knowledge ofcommunity members into the school program. Thus, the Government of AJ&K iscommitted to supporting theinvolvement of communities in the education of theirchildren.

General Problems

- About 28% of primary schools can be categorized as either dangerous orshelterless. About 42% are in bad need of repairs.

- Hardly any funds are available for basic repairs and maintenance of schoolbuildings.

- Many schools do not have boundary walls and basic necessary amenities.

Strategies

- To increase access and retention, new schools will be built, dangerous schoolswill be reconstructed, and adequate facilities will be provided. In addition, aschool maintenance program will be established.

- A School Mapping exercise will be undertaken for assessing actual needs andfuture planning.

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ANNEX 5Page 6 of 8

-New schools will be established on the basis of needs, and where appropriate,co-educational schools will be built to increase cost-effectiveness.

- Female teachers will be preferred in the posting of teachers to co-educationalschools.

- Communities will be encouraged to participate in the construction of schoolfacilities.

- School Committees will be established to assist school administration insolving school problems, including maintenance.

Strengthening Management

All improvements in educational quality and access rest on the ability of theeducational system to use human and material resources wisely in the present and to planfor future needs. Good infornation and rational systems of postings and transfers underlieeffective educational management. Thus, recently the Directorate of Education (Schools)has been bifurcated into a Directorate of Elementary Education -and a Directorate ofSecondary Education to improve educational efficiency as a whole, and in particular, toimprove capacity at the elementary level, and to strengthen school supervision.

General Problems

- Duties of AEOs, DDEOs and DEOs need to be streamlined to enable them tovisit schools more regularly.

- Supervisory jobs need to be well-defined and focused on improving the qualityof education.

- Staff posted in supervisory positions require induction training.

- Regular inservice training system for supervisory staff need to be developed.

- Supervisors badly need transport facilities.

- EEC and CRDC need more expertise in several specialized areas.

- Educational Management Information System (EMIS) cannot cater to thegrowing needs of the educational system due to inadequate staffing and lack ofequipment.

ANNEX 587 Page 7 of 8

Strategies

- Additional positions of AEOs will be provided so that an AEO may supervise50 primary schools at the maximum.

- An AEO will visit each school at least 4-5 times a year, and will have to followthe list of minimum activities to be carried out, with emphasis on providingprofessional guidance.

- Female AEO staff will be appointed in positions occupied by male AEOs byencouraging and facilitating female SSTs.

- Job description will be part of the appointment letter for supervisors.

- A policy on posting and transfer of supervisors will be followed.

- Selection criteria for AEOs, DDEOs and DEOs will include: (a) experience ofelementary education; (b) basic qualification; (c) tenure of the post, etc.Ultimately, the aim will be to create a separate cadre.

- Performance of supervisors will be enhanced by providing: (a) inductiontraining; (b) transport facilities; (c) adequate budget according to the nature ofthe work; (c) inservice training for supervising and guiding the teachers.

- Taking the bifuircation into Elementary and Secondary Education to logicalend, middle classes will be separated from High/Higher Secondary Schools.

- The Directorate of Elementary Education will be strengthened by providingnecessary equipment and transport facilities.

- EEC, CRDC and EMIS will be strengthened in terms of human resources an-dphysical facilities. Mobile Training Unit will be established in EEC.

Increasing Community and NGO Participation

The majority of the people feel and even express that the problems prevailing inschools cannot be solved with limited resources provided by the Government. Thepotential of sharing responsibilities of schooling is emerging among the people, which canbest be utilized for promoting community participation.

The idea of community participation in school affairs in AJ&K is not a new one.During the past years people have involved in extending assistance in cash or kind forestablishing schools for their children. In certain areas where people are well-off, they

88 ANNEX 5Page 8 of 8

provide the school facilities themselves. They take part in school maintenance and repairsof classrooms and furniture.

Communities in AJ&K are aware of the importance of education. This is why theGovernment has responded to the demand of the people to establish schools andconsequently, at present, each village of the State has got primary school. In certainvillages people have established "Education Committees" in order to support and assist .school management. Usually welfare workers and retired Government servants activelytake part in functioning of the Education Committees. The efforts from communities inthis respect need to be utilized in a structured manner.

Recently some NGOs and individuals have come forward in establishing schools inthe private sector. If NGOs and other interested people engaged in education areencouraged and assisted, they can also contribute to quality education.

ffStraees:

To increase community participation, these measures will be taken.

- Widespread campaign will be launched to promote the concept of communityparticipation in educational programs.

School Committees will be constituted, and through legislation, their structure,functions and responsibilities will be determined.

Training of the members of the committees and supervisory staff of educationdepartment will be organized.

- Education Councils at district level will be framed to monitor the activities ofSchool Committees.

- With increased community interest in education, school facilities will beconstructed through participatory approach.

- Greater involvement of private sector in education will be encouraged.

Education SecretariatAzad Jammu & Kashmir

89ANNEX 6Page 1 of 9

PAKISTAN

NORTHERN EDUCATION PROJECT

Project Monitoring and Evaluation

I. Approach

1. Monitoring and evaluation activities under the Northern Education Project (NEP) willderive from and be integrated into the regular functioning of the educational administrations in NAand AJK. The monitoring and evaluation plan comprises four modalities: (1) systemic monitoring byeducation management staff; (2) special studies and reviews undertaken within project components;(3) Mid-term review and final reviews; and (4) a baseline and end-of-project sample-based survey ofstudent achievement. Monitoring will primarily serve management functions while evaluation willprovide technical feedback and knowledge. In addition to the supervision required by the Bank, theNEP will strengthen capacity in AJK's DPIEE and the NA's Directorate of Education (DOE) toperform monitoring and to coordinate and learn from evaluation activities. Because the projectfocuses on improving classroom quality, increasing equity, and strengthening community support toschools, meaningful evaluations will require systematic, field-based study. The plan is to conductintensive mid-term and final evaluations of the project's impact on increasing access, improvingeducational quality, strengthening management and increasing community involvement. Annualevaluations will also be conducted in the NA. Due to low institutional capacity in the NA,appropriate technical assistance will be provided.

2. It is important that a project designed to raise school quality makes an effort to assessthe impact it has made on learning achievement. For this reason, an assessment will be made ofstudent achievement, using a criterion-referenced test, in the first year and final years of the project.With all that is known about the long-term and cumulative nature of educational reforms, it would befool-hardy to take such a test as the sole determinant of project success or failure. At the same time,it would be negligent to omit such a measure. At the very least, the effort will inform future projectsabout the degree of achievement results that can be expected in a four-to-five year period.

II. Indicators

3. Overall project impact will be inferred from specific indicators collected under theaccess and quality components. In particular, these indicators include increases in enrollment andgender equity at primary and middle school levels and increases in achievement among grade 4students.

4. Improving the quality of elementary education will be measured by increasedavailability of learning materials, improvements in teacher qualifications and observed changes inclassroom practices, as well as by the achievement testing described above. The assessment ofclassroom practices will be one dimension of mid-term and final project reviews, in which a sampleof classes will be observed for the use of multi-grade techniques, continuous assessment, and otherappropriate pedagogical techniques. The final review will be reinforced by a special study undertakenby the CRDC in AJK, under the curriculum subcomponent, of the effectiveness of alternative modesof delivering learning materials. In the NA, the annual evaluation in 1999/200 will include a focus

90

ANNEX 6Page 2 of 9

on teacher training. The 2000/2001 evaluation will include an in-depth assessment ofteaching/learning processes. A sample of classes will be observed for the use of multi-gradetechniques, continuous assessment, and other appropriate pedagogical techniques. The final reviewwill also analyze current classroom practices.

5. Increasing equitable access will be monitored through annual calculations ofenrollment, progression and completion rates, by gender, on a district and region-wide basis.Baseline data will be reaffirmed through the school-mapping exercise. The strengthening of EMISwill allow for regular access to this data. The first annual evaluation exercise in the NA, in1998/1999, will focus on establishing access baselines and ensuring that EMIS is able to monitortrends accurately.

6. Success in strengthening institutional capacity will be indicated, in part, by the timelyconduct of program activities, including monitoring and evaluation activities. Underlyingmanagement reform in the NA and AJK is the clear definition of management responsibilities. Thus,the existence of job descriptions will be one piece of evidence that the system is being strengthened.Because institutional strengthening determines the effectiveness of the project as a whole, the NAannual evaluation in 1999/2000 will focus on the status of institutional capacity building at central anddistrict levels. The 2001/2002 review will assess progress in management strengthening in theprevious three years.

7. Increasing community participation in schools may be the most difficult component toevaluate effectively. Growth of community school committees gives a crude measure, but begs thequestion of how effective community participation is in supporting and managing schools. The recentreview of the community schools program in the NA provides a baseline for evaluating their furtherdevelopment, which will be a focus of the 2000/2001 annual evaluation. This will evaluate thestability of enrollments and the teaching force in the community schools as well as improvements inthe quality of education which they offer. In AJK, the project will provide maintenance and learningmaterials funds directly to school committees and the mid-term and final evaluation can assess theeffective use of these funds. Most expertise in community participation currently resides in the NGOsector, and it may therefore be wise to include a community organizer in the field reviews, while atthe same time involving civil servants whose purview includes community development.

91 ANNEX 6Page 3 of 9

M. NA Mokorua bIdeatog;

OSIECTlVS INDICATOR BASELVE TARGEr SOURCE

ACCESS & EQUrrY _ _ _ _ __=

lacrensed enrollment in primary 1 of children enrolled in prmai Primsry Primary EMISand mniddle school and middle school 79.027' 102.150

Middle: Middle:20.821 25.600

Incelsed g nder euity % of girls in ementary 30% 50% EMISenrollznent

incasd eduanal aimmt Claswise prgremion is by Grede 1. TBD in Year 3 25 % incrcea by Year S EWIS

QUALlY__ _ _ _ _ _ _ _ ___ _ _ _ _ _ _ _

aremc teacer qualifeatioc % techebn with credentia 50% Primary 95% Primasy EMIS32% Middle 90% Middle

% of teachen receiving FBTD lae than 1% 100% AD Teacher Traiing + EMSdat

Teaeber use of klamg ateris % of observed lesons using little to none TBD. 2000/2001 evaluation 200012001 nd fnul evaatooa

Teacher use of continuu % observed techers using litte to none TBD. 20001001 evaluation 2000f2001 and rfn evaluaonssammet. multigrade. etc technique

lcreae laring Stdent achievement wCorm. TBD Yr. I TBD Yr. I Sample achieveent survey. TAgrade 4 _ to DOE

Teacher achievement scor TBD Yr. 1 TBD Yr. I

STRWiGTfElNMAINAGLEMT

Rationalize educational % posts with job descriptions - 100%. end of Year 2 199

9/2000

nnual cvaluationmanaement

Information-based pla.ning Requests for EMIS data Requests from all levels of Annual EMIS report 1999/2000magement: evidence of u c annual evaluation

Instiiutionszeplanning & Timely completion of BEed on progretn plans 100% annually 1999/2000& 2001/2002tmpimeation capaciti procurement evaluationt

Crete atnnualplns na. 100% annually 1999/2000& 2001/2002evaluations

% ctivities inpktnented Basd on a l plan 100% annually 199912OOO& 2001/2002according to pb nv evations

SIrNgthening onitoring& rumely completion of M & E Based on M & E schedule 100% annually 1999"/0& 2001/2002evauation cpcity functions valuations

COAMISIUTYPARTICWPATON

Inasig community I of VECs 445 (u of May 1997) Maximnum of 800 20/2001 & fruil annual reviewsinvolveat _

Conunon functioingof School % VECs functioning 2 yes after n.a. 90% after 2 yea" 2000/2001& final ann rvimwsCoin_a establishment

1/ 1994.

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ANNEX 6Page 4 of 9

IV. Sources of NA Indicators

(a) Increasing equitable access

8. NEP will support the development of an EMIS system for NA, from which access datacan be derived. Because the EMIS will only begin functioning in 1998/1999, the program will haveto rely on simple access indicators. These are: (i) enrollments in primary and middle schools, bygender and district; (ii) percent of girls in elementary school; and (iii) classwise progression inprimary school. Baselines for the first two indicators have been estimated and will be revised in theschool mapping exercise undertaken in the first year of the program. Classwise progression rates canonly be estimated with successive years of data. Thus, in 1999/2000, it will be possible to determineprogression from Katchi to class 1, and in 2000/2001, from class 1 to class 2. Given evidence ofhigh dropouts in the early years, these statistics provide a good beginning for understanding trends ineducational attainment in NA.

(b) Improving quality

9. Educational evaluators have long struggled with the question of how to assess schoolquality, particularly in quantifiable terms. Three types of indicators of quality will be employed inthis project. The most readily available indicators are those that deal with system inputs that arepresumed to affect quality, such as the conditions of school facilities, the presence of textbooks andthe percent of qualified teachers. Student mastery of knowledge and skills derives from theteaching/learning processes that take place in the schools. Thus, the program will support baselineand end-of-project assessments of learning achievement in order to determine program impacts onquality. The following set of indicators will be used for evaluating improved educational quality: (i)percent of certified teachers (input); (ii) percent of teachers receiving FBTD (input); (iii) teacher useof learning material (process); (iv) teacher use of multigrade techniques, continuous assessment, andother active pedagogical skills (process); (v) learning achievement of teachers (impact); and (vi)learning achievement of students (impact).

10. Indicator (i) can be calculated from EMIS data, which will include the number ofteachers holding PTC, CT, BEd, MEd, or no teaching qualifications. It is important that the EMISquestionnaire be designed so that teachers are identified by the level at which they teach, as well asby type of school. Indicator (ii) will be derived by DOE from its data on FBTD training in relationto the teacher data generated by EMIS. The process indicator (iii) and (iv) can be assessed onlythrough field-based observations of teaching/learning processes. Such observations will be a focus ofthe 1999/2000 evaluations and final reviews. The impact indicators, (v) and (vi) will derive frombaseline and end-of-program testing of achievement among grade 4 students and teachers. The fourthgrade level is recommended for sample-based achievement testing -because improvements in the basicliteracy and numeracy skills are foundational to quality improvements. Because of the high costs andimplementation difficulties attendant upon population-wide testing, these assessments will be sample-based. For reasons of cost-effectiveness and simplicity, the exams will cover only two subject areas,Math and Urdu, which define literacy and numeracy. The technical skills required for such testing-construction of criteria-referenced tests and sampling techniques--are as yet rare in Pakistan.Therefore, substantial technical assistance (TA) will be required for this activity. At the same time,emphasis on capacity building and local ownership dictate that this TA be integrated into the project

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activity. Thus, the TA will work in conjunction with DOE departments of curriculum andexaminations.

(c) Strengthening institutional capacity

11. All indicators for the component of strengthening management capacity are of a processnature. The major indicators are: (i) percent of administrative posts with job descriptions; (ii) use ofEMIS data by administrative staff; (iii) timely completion of procurement; (iv) creation of annualimplementation plans by each implementing agency; (v) percent of activities according to plan; and(vi) timely completion of monitoring and evaluation activities. The DOE has begun work on creatingjob descriptions. It is expected that all administrative positions under the DOE will have jobdescriptions by the end of year two. Indicator (ii), which gives a sense of the use of information forplanning purposes, can be generated by a simple annual report from EMIS on information requests.The report should specify the source and nature of the request. Indicators (iii), (iv), (v) and (vi) willbe generated annually in the project review and planning process in conjunction with Banksupervision. The annual evaluations in 1999/2000 and 2001/2002 will focus on institutionaldevelopment. Because management capacity is central to the success of the program, early reviewwill enable necessary adjustments to be made.

(d) Increasing community participation

12. The two indicators of increased community participation in education are also processindicators. They are: (i) number of Village Education Committees formed; and (ii) number of VillageEducation Committees functioning after two years. These indicators will be calculated in the2000/2001 annual evaluation and in the final evaluation. In both years, community participationspecialists will also visit community schools and interview VEC members, teachers, and parents, inorder to assess the quality of education provided, as well as to identify any constraints to the effectivefunctioning of the community schools. The following table summarizes the specific componentswhich will be assessed in annual evaluations:

Focus of annual evaluations

Year Focus

1998/1999 Access: Data Quality

1999/2000 1. Institutional Development2. Teacher Training

2000/2001 1. Community participation2. Classroom practices

2001/2002 1. Assessment2. Institutional Development

2002 All program components

94

ANNEX 6Page 6 of 9

V. AJX Mooitorne Indlators

OBJECrIVES INDICATOR BASELINE TARGET SOURCE

ACCESS & EQUITy

hmmosed comll1oot in pimiy sd N of childreo eexolled in prinry snd Prism,y: PrdmarY: EMISmiddle sb ol I. s~o, 423,061 535.30D

Middle: Middle:116,918 14,0CO

lnesed ed ty S of d i s in middleboel etuollss 36% 93% EMIC

Incrased ui = _ Clssewis. peognesu i1mis by goer rsnd 3, TED in Yeat I 25% w_e by Yest EMIS

Grade oplion nut. by rbt TBD in Yot 3 10% iseas by Yt _ EDMIAS .4h do. ftm DEO

QUALITy

1omes., sebe qlios.s S i Ge_ n ith osedeniuls 80% P.7.s 95% Prsmsy EMIS84% Middl 90% Middl

% of weaime eiing INSET 1% Priosy, in Iosgssd Curtiolun, 100% Primy in IC, Yot 3 EEC + EMIS d

Fot otkmr cow,., TBD Oftr TBD in EEC Amnl

Tesober ses of' lning itr I of ob%deled lese eg wig mtersils TBD, mtid-unm TBD, mid-utm Mid-tenm .e rhel natiew) CRDC

Tear w of coss s.m.m, B obs_rrod teedr swing uedsskqe t Ihle toso , TBD mnid-%cnn -alustion Mid-tenn d r.AI rvesoneltietrad. ott,_ _ _ _ _ _ _ _

incosee, imtOso Snaen .d-.mn t sees., £Sde 4 TED Yr. I TBD Yr. I Sunopl acslivoram surW, TA ithCRDC, AD A _seem & Va

T_dee. d-lent eTD Yr. I TBD Yr. I

STRENCITHEN MANAGEMENT

Ratilz ed_Uctional m%em p ts ith job desriptioe 100%. ad of Yoes 2 DPI EbnsAey

Infonnl _-bs.d plasmiog Requs for EMIS dat Rcqs-te froma 11 oWlbl of Aewl EMIS repos: Mid-teso sdtagoet; oviden of se w reesl o

Imtitionalize pisootg A iemly oeospltiee of p r BEased on pronu pIe 100% aOmts y AD Procu=set sid Disbursementiottl-tios capaot ee

C-t --- I piecel .a. 100% remlly DPIEEE: al impleening agim

% ejitiC in pemnd eerdin to BSad m --- 1 ptM DD for Eln_easy DeWpmmpan Provesm lemP-sen

Seogthetung meetoing & e.waion rteuly nooplet of M & E fumeiew Baud on MA E .lulc 100% annually DD for Elementary Denelp-ee ity Prognrm Implemeteton

COMMUNIUTY PARTICIPATION

lnreasing co nity i nt of School Coneitee, (SC) in pilot 0 50 Com ty Port iptionC TA; Mid-tnedistict sa Mid-Tecm Reovv rvise'.

Contineem fitviong of dseol S SC functioning 2 Years oftr 0 90% after 2 Yom Community Participatio TA; Mid-termCosse i C.eblistIne & bid rn

Effemis e of mvinces fe_ AAnce eni.-d by co -y P u c Sos fAd. es - U.no _tie; Mid-m and (islof expeaditums Used for meinteoce

Effntew se, of leseosbeg ossted ila f Amus A mmsinobr cmsed by n ity, Purpose, a.S. Soee fuasl f irom esseie; Mid-teenm end fislof e Usd for Lasibeg mnateril

2/ 1994.95.

95

ANNEX 6Page 7 of 9

VI. Sources of AJK Indicators

(a) Increasing equitable access

13. Three of the indicators for increasing equitable access can be derived directly fromEMIS and the fourth by combining EMIS with district-level data. The EMIS system in AJK collectsdata on student enrollments, teachers and their qualifications, and physical facilities. The data iscollected annually in October and published in March or April. The following indicators of equitableaccess will be calculated by the EMIS system analyst: (i) enrollments in primary and middle schools,by gender and district; (ii) percent of girls in middle school; (iii) classwise progression rates, bygender; and (iv) grade 5 completion rates, by gender. It is a simple matter for the EMIS systemanalyst to extract the first two indicators and baselines already exist. The third and fourth indicatorsto be derived from EMIS data, gradewise progression and grade 5 completion rates, by gender,present greater technical problems. Absolute accuracy in this data would depend upon individualstudent identification, which is beyond the capacity of the EMIS at this time or during the life of theproject. Progression and completion rates can be estimated, however, using methods of cohortreconstruction. At a minimum, cohort reconstruction techniques require the calculation and use ofrepetition rates. The EMIS questionnaire has, since 1994/95, included a section on grade-wiserepetition, by gender. EMIS staff report that nearly half of schools fail to fill in the section, with aresulting loss of data quality. The verification of data process which will be built into the InstitutionalCapacity component will ensure higher quality of this data. Whatever their quality, repetition rateswill only have been calculated for three years at the time of project start-up. Thus, the baseline forthe project will be grade three progression rates, or the percentage of a cohort which reaches grade 3.In each subsequent year of the project, progression rates can be calculated for the next higher class.A portion of the TA provided for strengthening EMIS should be devoted to the design of a simplecomputer program enabling progression rates to be calculated on the basis of cohort reconstruction.

14. The fourth access indicator derived from EMIS data, grade five completion rates bygender, cannot be established until year three of the program. In this year, the progression rates ofstudents into grade five will be known. Completion rates will be calculated by the percentage ofstudents passing the grade five end-of-year exam. In order for this indicator to be accurate, studentssitting for the exam must indicate on their exam paper whether or not they have repeated grade five.AEOs must be made aware of the need for this information and its use, so that it can be properlyexplained to students and teachers.

15. In the mid-term and final reviews, evaluators will conduct interviews with children whohave and have not completed grade five, and their parents, in order to understand better the reasonsfor completion and non-completion. Rapid appraisal methods have been effective for eliciting suchinformation in other countries. The evaluation should concentrate on areas with low girls' completionrates, which will be identifiable through the EMIS data.

(b) Improving the quality of elementary education

16. Three types of indicators of quality will be employed in this project. The most readilyavailable indicators are those that deal with system inputs that are presumed to affect quality, such asthe conditions of school facilities, the presence of textbooks and the percent of qualified teachers.

96ANNEX 6Page 8 of 9

Student mastery of knowledge and skills derives from the teaching/learning processes that take placein the schools. The fundamental meaning of quality in education is that students master theknowledge and skills conveyed in the curriculum. Thus, the program will support baseline and end-of-project assessments of learning achievement in order to determine program impacts on quality.The following set of indicators will be used for evaluating improved educational quality: (i) percent oftrained teachers (input); (ii) percent of teachers receiving INSET (input); (iii) teacher use of learningmaterials (process); (iv) teacher use of multigrade techniques, continuous assessment, and other activepedagogical skills (process); (v) learning achievement of teachers (impact); and (vi) learningachievement of students (impact).

17. Indicator (i) can be calculated from existing EMIS data, which includes the number ofteachers holding PTC, CT, BEd, MEd, or no teaching qualification. However, this indicator will bemore meaningful if a simple modification is made to the EMIS questionnaire. Currently, teacher datais reported by t of school, rather than level at which teachers are teaching. Because middle andsecondary schools include primary sections, it is not possible to sort out primary teachers--and theirqualifications--from the data. Adding two lines to the current questionnaire would solve this problem.Indicator (ii) percent of teachers receiving INSET, will be derived by EEC from is data on INSETtraining in relation to the teacher data generated by EMIS. In particular, EEC should track thepercentage of primary teachers which received INSET on the Integrated Curriculum. Currently, onlyabout 1 % of AJK's primary teachers have benefitted from this training. The process indicators (iii)and (iv), can be assessed only through field-based observations of teaching/learning processes. Suchobservations will form a second dimension of the mid-term and final reviews. Evaluators willdevelop simple questionnaire for classroom observation and teacher and student interviews in order toevaluate these processes. In a special study in the final two project years, the CRDC will examine ingreater depth the use of learning materials by teachers. The CRDC will also incorporate field testingand monitoring of textbooks into their curriculum development cycle. These activities will contributeto the evaluation of the curriculum subcomponent. The impact indicators, (v) and (vi) will derivefrom baseline and end-of-program testing of achievement among grade four students and teachers.T-he fourth grade level is recommended for sample-based achievement testing for two reasons: (i) thecurriculum for grades 1-3 will be delivered through already-existing textbooks; and (ii) improvementsin the basic literacy and numeracy skills are foundational to quality improvements. As in NA, theseassessments will be sample-based. For reasons of cost-effectiveness and simplicity, the exams willcover only two subject areas, Math and Urdu, which define literacy and numeracy.

18. The technical skills required for such testing -- construction of criterion-referenced testsand sampling techniques -- are as yet rare in Pakistan. Therefore, substantial TA will be required forthis activity. At the same time, program emphasis on capacity building and local ownership dictatethat this TA be integrated into program activity. Thus, the TA will work under the auspices of and inconjunction with CRDC, which is the institution responsible for development of grade-wisecompetency lists. These competency lists provide the criteria on which the tests will be constructed.

(c) Strengthening institutional capacity

19. All indicators for the component of strengthening management capacity are of a processnature. The major indicators are: (i) percent of administrative posts with job descriptions; (ii) use ofEMIS data by administrative staff; (iii) timely completion of procurement; (iv) creation of annual

97

ANNEX 6Page 9 of 9

implementation plans by each implementing agency; (v) percent of activities implemented according toplan; and (vi) timely completion of monitoring and evaluation activities.

20. The DPI(EE) has begun work on creating job descriptions, beginning with the positionof AEOs. It is expected that all administrative positions under the DPIEE will have job descriptionsby the end of program year two. Indicator (ii) which gives a sense of the use of information forplanning purposes, can be generated by a simple annual report from EMIS on information requests.The report should specify the source and nature of the request. In mid-term and final review,evaluators can follow up on the reports by discussions with information users and non-users.Indicators (iii) (iv) (v) and (vi) will be generated annually in the program review and planning processin conjunction with Bank supervision.

(d) Increasing community participation

21. The four indicators of increased community participation in education are also processindicators. They are: (i) number of school committees formed; (ii) number of school committeesfunctioning after two years; (iii) effective use of maintenance funds; and (iv) effective use of learningmaterials funds.

22. Indicators (i) and (ii) will be routinely collected by the TA for community participation.The same TA will provide input to the mid-term and final evaluations for determining indicators (iii)and (iv). The terms of reference for this portion of the evaluations will specify that evaluatorsdetermine, for a sample of school committees, (a) the level of community contributions tomaintenance and learning materials; (b) the specific purposes to which these funds have been put; and(c) community views on the effectiveness of the school management committees in these two areas.

VII. Oversight of and reporting on monitoring and evaluation activities

23. The sections above detailed specific means and responsibilities for gathering monitoringindicators. In all cases, however, it is the responsibility of relevant offices in the DPI/EE and theDOE to ensure that evaluation exercises are conducted and that the resulting information is fed backinto project planning and implementation.

98 ANNEX7Page 1 of 14

PAKISTAN

NORTHERN EDUCATION PROJECT

Institutional and Implementation Arrangements

Implementation Timeline and Modalities

The project would be implemented over a five year period in both the NA and AJK, starting inthe first semester of FY1997-98 and closing on June 30, 2002. Although a detailed forecasting ofactivities year-by-year has been done for project planning and costing purposes (and is reflected in ProjectImplementation Plans prepared by the NA and AJK administrations prior to Negotiations), experience hasshown that flexibility in meeting overall policy goals and targets is crucial. The project has thereforeundertaken a more flexible approach in the use of Annual Plans to determine annual implementationtargets in support of policy goals.

Implementation Responsibilities

On a day-to-day basis, the Directorate/Department of Education would be responsible for: (a)monitoring program costs and program accounts; (b) processing disbursement applications and keepingtrack of disbursements of credit funds; (c) procurement of equipment and administration of contracts; (d)placement and tracking of any local staff receiving training abroad; (e) monitoring program/projectimplementation; (f) preparation of Annual Plans and periodic consolidated reports of the progress ofproject implementation, with reference to agreed monitoring indicators. DOE structure, additionalstaffing needs, and specific implementation responsibilities by objectives and components for both NAand AJK are presented in the tables that follow:

99 ANNEX7Page 2 of 14

PAKISTAN - NORTHERN EDUCATION PROJECT

NORTHERN AREAS - DIRECTORATE OF EDUCATION

Staffing Requirements

I [_______ IDA FinancingTitle Pay Scale Government Financing Additional Contract Cost Table

Staffing Staff Reference

1. Assistant Director, Curriculum BS-17 Deputy Inspector of school to beand Materials Development redesignated as AD-Cvi

......... Z s:............................................................ ....................... .................................... ...................... ............ .......................... .................. I.... .................. ............................ ..........................2. Assistant Director, Teacher BS-17 Existing post

Training and Supervision..................................................... ,.,...................... .................................................................. .......................... ....................... ...............

3. Assistant Director, BS-17 New post of AD already createdExaminations and Assessment

4. Assistant Director, Community BS-17 Assistant Inspector of schoolsMobilization, NGOs & SAP redesignated as AD

5. Assistant Director, Monitoringand Evaluation BS-17 1 Table 601

6. Assistant Director, Planning BS-17 NewpostofA aireadycreated.................................................. X...................... ..................... ....... I.....................I..........I..........I...... .......................... ....................... ...............

7. Accounts/Procurement BS- 16 ExistingS. Assistant Accounts Officer BS-16 Existing9. Administrative Officer, BS-16 Existing

Elementary Education....... ............................................................ ...................... .................................................................. .......................... ....................... ................

10. Assistant Director,Administrative Section, BS-17 I Table 601Education

11. Assistant Director, Colleges BS-17 New post of AD already created.............................. .................................. ...................... .................................................................. .......................... ....................... ...............

12. Deputy Director, BS-IS New post of DD already createdAdministration... .. .................. ...................... ............................. ................ ...I.................. .......................... ........................ ................................................ ......... ................. ...........

13. Deputy Director, Colleges BS-18 New post of DD already created............... ... ...................................... > ..................... .................................................................. ...................................... .......................... .14. Deputy Director, SAP and

community mobilization BS-18 I Table 601....... ...................................................... ............. ............ ...................... ............................................... .......................... ....................... ................. ............... ...............................

15. Deputy Director, EMIS BS-18 New post already created16. Director, Academics BS-19 New post of DD to be upgraded

to BS-19 through adjustment............ ..... .................................................... ...................... .................................................................. .......................... ....................... ...............

17. Director, Planning, BS-19 New post of DD to be upgradedDevelopment and Monitoring to BS-19 through adjustment

... ....................................................... ................ .......... ...................... .... I........................................... .......................... ....................... ................. .............................. .... ........... 18. Director-General of Education BS-20 New post of DD to be upgraded

to BS-19 through adjustment~~~~~~~~~...................................... .............................. ............... ...................... ........................................ .......................... ....................... ................. ............... ...............................19. Programmer BS-I 8 New post already created20. Data Entry Operators (4) 8S-12 New posts already created

............................................. I............. ................ .......... ...................... ................................................ .......................... ....................... ................. ............... ...............................21. Computer Operator (1) BS-16 I Table 601............................................................... .. E.............. ........................................................... I....... .......................... ....................... ................22. Systems Analyst BS-18/19 I Table 70123. EngineeBr .......................... BS-18 I Table 603~~~~~~~~~......................................... ...................... ........... ......................................................... ...................... ......... ....................... ................................... ............ .............. ........... 24. Statistician I Table 701

2~~~~~~~~~.................. ..... oygrpeBSi ........ ................................................. ......................... ............ .................25. Stenographer ES-~~~~~~15 2 Table 60.26 tnotypist BS-12 3 Table 601............................ ..............2........ .................................................. .................... .6.. ............. bl... f ~ ~ ...

27. Upper Division Clerk BS-7 10 Table 60.28. Naib Qasid ES-I 12 Table 60129. Chowkidar ES-I I Table 601~~~~~~.................................................. ....................... .......................................................... ..I...... .............. .............. ...................... ........................................................................... ........... 30. Driver BS-4 2 Table 601

....................................................... ...................... ................................................................... ................ G.......... ....................... ...............31. Data Entry Operators (EMIS) BS-12 4 Table 701

..................................... ................................................ ...................... ............... ....................... I........................................... ....................... .......................... ....................... ... ... .................... .32. Computer Operator (EMIS) BS-16 I Table 701.. y 5f...... ................................... ...............................................I...................... ........................................................................... ...................................... ......................... .......... Y W ......... 33. UDC (EMIS) BS-7 4 Table 701

L ...... a

100 ANNEX7Page 3 of 14

PAKISTAN - NORTHERN EDUCATION PROJECT

NORTHERN AREAS - DIRECTORATE OF EDUCATION - DISTRICT LEVEL

Staffing Requirements

______,___ IDA Financing

Title Pay Scale Government Financing Additional Contract Cost Table(Existing Staff) Staffing Staff Reference

1. District Education Officers (5) BS-18 4 DDs (including one new post) I Table 602redesignated as DEO

2. Deputy District Education BS-17 ,5 Table 602Ofricer, Academics~~~~~~~~~~~~~~~............ ............. ........... s...................... ........ ..........I............. ........................... ......................... ........... ...........................

3. Deputy District Education BS-17 5 Table 602Officer, Planning,Development and Monitoring

4. Deputy Di str ct Educa n BS-1 7 5 D epu ty Inspector of Schools .................................. ....................... .............................Officer, Administration redesignated as DDEO

----.......... _1 ........ .............. ..................................................... ............. ..........5... ............. .......... ..........T... able60...25. Assistant Education Officer, BS-16 5 Table 602Curriculum and MaterialsDevelopment, andExaminations and Assessment

..................................................... ................... .................................................................. ....................... 5... ....................... ..... T..able..60..2g6. Assistant Education officer, BS-16 5 Table 602Teacher Training andSupervision, and CommunityMobilization

....................................''ii~l y~ .......... ............... ................................................................. .......................... ....................... ...............7. Assistant Education Officer, BS-16 5Planning, Development andMonitoring............................................................................ ...................... .................................................................. .......................... ....................... ...............

8. Assistant Education Officer BS-16 32(Field Level)

................................................................... ...................... .................................................................. .......................... ....................... ...............9. Computer Operator (5) BS-16 5 Table 602.................................................................. ...................... .................................................................. .......................... ....................... ...............

10. Data Entry Operator (10) BS-12 10 Table 602i 11. Superintendent (3 posts) BS-11 3 New positions already created12. Upper District Clerk BS-7 10 Table 60213. Naib Qasid BS-1 20 Table14. Driver BS-4 5 Table 602

Figure 1

RECOMMENDED ORGANIZATIONAL CHART OF DIRECTORATE OF EDUCATION, NORTHERN AREAS

Secretary

Education

Health & Local Govt.

Director-Generalof Education

Oired4r 1 Dr~~~~~~~~~~~~orel to

Crk TAchdeir |rg Examinations Protect Plner Planning Accountant Ast. APsings Deveisaent

Ma rits & Supe ision Assessmentonitoring .Procure entAsistantomm. Mo.Adminstr

I I Dp D or f Dhp.1Irector Dep. f tiredor . Dep. Df&fry

lIIS SAP S Am tarnCobe

_Comrm1. Mob e Femar e

Asst. Dir. Asst. Dir. Asst. Dir. Asst. Dir. Physical Assl. Dr. II

CurricuhrmSTearherTrgExam'ati'ons Project Planner Plarnning f ;;;- |As || st. i. sssat I

Malerial & Supevision Assessment MoJnitoring .|(Procurement)i Assistant l|Crm o.| |Amitaie dhsrlo reo

Devebpment l l | ~~~~~~~~~~~~~~ ~ ~ ~~~~~~Accounisofficer & NGs | | Oie eodrE

sL . | . | ~~~~~~~~~~~~~~~~~~~(ftudget. Accounts |ElretyEd| j

v | Senirr | . | &~~~~~~~~~~~~~~~~&Disbursements)|liSuperintendent

Superintendernt Superintendent

| Pro9rimmer | | Demographed || | | C~ommunily S Ed.|

Dat Entry Seiais

IOperatoJrs|

Figure 2

RECOMMENDED ORGANIZATION CHART OF THE DIRECTORATE OF EDUCATION, DISTRICT LEVEL, NORTHERN AREAS

DISTRICT LEVEL

| Distdct Education |Officer

(Male/Female)

I (One of the DDEOs will be Female) I Dputy DsrdDeputy District Deputy Dislic

Eduralion Offilcer Education Officer Education OfficerAcademics Plan., Dev. & Monit. Administration

Assi. Educ. Off. Asst. Educ. Off. Asst. Educ. Off. Superintendent EMIS Superintendent SuperntendentCurriculum & Mats. Teacher Trg. & Sup., Planning, Develop- Budget & AccountsJ (Computer & Admin.. Eemen. Ed. Admin., Sec. Ed.

Dev., Examinations Community Mob. & ment & Monitoring Disbursements Data Entry Staff) induding Community including Community

& Assessment NGOs__ & NGO Funcions & NGO Functions

(One Female) (Two Female) (one Female) t

SUB-DISTRICT LEVEL

One Assistant Education Officer (AEO)for 25 schools

BELOW TEHSIL

A middle school (called Elementary School) will serve as resource center (RC) for5 Primary Schools. AEO will thus be in charge of 4-5 Resource Centers. Resource Centers will be strengthened

to cater to the quality needs of the cluster.

0

103 ANNEX.7Page 6 of 14

PROGRAM IMPLEMENTATION RESPONSIBILITIES - NORTHERN AREAS

TASK/ COMPONENTS DESCRIPTION RESPONSIBLE COORDINATIONOBJECTIVE

Overall program All Ensure program is in line Program Steering Allcoordination with state priorities and Committee

resources; approval ofannual plans

Coordination of All Ensure collaboration of Director of Directors ofProgram various institutions Education, Program Academics, Planning,Implementation involved in program lmplementation Development and

implementation Committee; Monitoring,AKDN-DOE Administration,Coordinating District LevelCommittee Offices, Colleges of

ElementaryEducation, AKESP,AKRSP

Monitoring of All Regular tracking of All Directorates Assistant Director,program program activities, and District Project Monitoringimplementation expenditures, and Offices, AKESP for centralizing

indicators and AKRSP for informationrelevantcomponents

Reporting on All Provide comprehensive Director, Planning, All Directors, Districtprogram overview of program Development and Offices, AKESP andimplementation, status Monitoring A!KRSPmonitoring andevaluationactivities

Preparation and All Regular reporting required Director, Planning, All other departmentssubmission of under loan agreements, Development and and district offices;financial and and necessary for Monitoring perhaps P&D andother reports to fnancial reimbursements Financefederal Govt,IDA

Preparation of All Set annual targets for All Directorates, Director, PlanningAnnual implementation plus AKESP and Development andImplementation AKRSP Monitoring forand Investment centralizingPlans information

104 ANFX7

TASK/ COMPONENTS DESCRIPTION RESPONSIBLE COORDINATION Page 7 of 14OBJECTIVE

Preparation and Quality Development, trialling DOE, Director teachers, AEOs,oversight of Improvement and research on Academics AKESP any othereducational educational materials to agency purchasing ormaterials improve teaching-learning providing educationalprovision process materials

Provision of Quality Improvement of content DOE Director District Level offices,FBTD courses Improvement knowledge and skills of Academics, AKESP Elementary Teacherfor elementary existing teaching force Training Collegesteachers

Oversight of Quality Investments training of DOE, Director Elementary ColegesImprovements in Improvement instructors, improvements Academics of Educationpre-service in PTC and CT coursetraining content, investments in

training materials

Oversight of Quality Training of teachers and DOE Director of AKESP, Elementaryactivities related Improvement instructors in continuous Academics, Colleges of Educationto development assessment techniques Assistant Directorof assessment Examinations andcapacity Assessment

Development of Improving School mapping, training Directorate DirectorPhysical Planning Equitable Access of central and district Planning AdministrationCapacity offices in use of Development and

information Monitoring withTechnical Cell

Oversight of Improving Training of communities Civil Engineering District Offices,School Equitable Access and supervision of civil Cell (with Communityconstruction works consultant help on Mobilizationactivities training), Education Coordinator

PlanningDepartment

Improving Improving Decisions made on the Directorate of AU Departments andavailability and Institutional basis of timely, accurate Planning, district offices, P&Duse of Capacity information Development andinformation Monitoring; DD

EMIS

105 ANNFX-7Page 8 of 14

TASK/ COMPONENTS DESCRIPTION RESPONSIBLE COORDINATIONOBJECTIVE l

improving Improving Provision of additional Director for District officesworking Institutional supervisory staff (AEOs), Planning,conditions, tools Capacity vehicles, computers, etc. Monitoring and

Development forprocurement l

Management improving Training in supervision, Director, Planning, All departments.Training for Staff Institutional use of information, use of Development and District offices

Capacity computers, etc. Monitoring

Improving Increasing Training for DOE staff in Director, SAP and Director,capacity of DOE Community community mobilization Community Administration;to work in Participation and other areas related to Mobilization; District Officespartnership with working with VECs and Assistant Director.communities PTAs Community

Mobilization andl____________ NGOs; AKRSP

Further Increasing Refinement of policy Director, SAP and All departmentsdevelopment of Community towards community Communitycommunity Participation schools; development of Mobilization;school program alternative financing and Assistant Director,

management arrangements Communityfor community school Mobilization andprogram through pilot NGOs; AKESPproject, and study ofexamples elsewhere inPakistan and abroad.

106ANNEX7Page 9 of 14

PAKISTAN - NORTHERN EDUCATION PROJECT

AZAD JAMMU & KASHMIR - DEPARTMENT OF EDUCATION

Staffing Requirements

AdditionalInstitution Title Number PC-I IDA Cost Table through

Reference Financing Reference redeployment

I CRDC (a) Subject Specialist 3 p. 5 7 3 Table 511(b) Specialist in Continuous I - I Table 511 (1) /a

Assessment(c) Data Entry Operator I p. 57 Table 511(d) Stenographer I - I(e) Senior Clerk I - I(f) Junior Clerk I - I

2. EEC (a) Subject Specialist 3 p. 57 3 Table 511 3(b) Data Entry Operator 1 p. 57 1 Table 511 -

(c) Stenographer I I(d) Senior Clerk 1 I(e) Junior Clerk I I

3. Planning Cell (a) Physical Planner/Engineer I p. 57 1 Table 511 -

(b) Computer Operator I p. 57 1 Table 511 -

(c) Data Entry Operator I p. 57 1 Table 511 -

(d) Head Clerk I l

4. DPIEE (a) Data Entry Operator I p. 57 1 Table 511 -

(b) Deputy Director I - - I(c) Assistant Director 4 - 4(d) Superintendent I - I(e) Head Clerk 2 - 2(f) Stenographer I - I(g) Accountant I - I(h) Senior Clerk 3 - 3

.___________________ (i) Junior Clerk 4 - 4

5. Secretary Data Entry Operator I p. 57 1 Table 511 -

Education

6. EMIS Data Entry Operator 4 p. 57 4 Table 611 -

7. Engineering (a) Executive Engineer 1 p. 27 I Table 513 -

Cell (b) Assistant Engineer 5 p. 27 5 Table 513 -

(c) Office Superintendent I p. 27 I Table 513 -

(d) Computer Operator I p. 27 1 Table 513 -

(e) Divisional Accounts Officer I p. 27 1 Table 513(f) Head Draftsman I p. 27 1 Table 513(g) Stenographer 1 p. 27 1 Table 513 -

(h) Overseers 12 p. 27 12 Table 513 -

(i) Senior Accounts Clerk 6 p. 27 6 Table 513 -

(j) Drivers 5 p. 27 5 Table 514 -

(k) Peon/Sweeper 13 p. 27 6 Table 514

8. District& AEOs 26 p.57 26 Table 512Below

j/ Position would come through redeployment, but IDA would finance the salary.

AZAD JAMMU & KASHMIR

Figure 1: ORGANIZATION CHART OF DPI lELEMENTARY EDUCATION)

(ExslastJg and Proposed Conbin.d)

Director, PublicInstruction, Elemntary

Education /3

F~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~Curr. Ronearch& On. CenterDeetorate 13 Deputy Drector Deputy ecdor Deputy Direcior Deputy Director Deputy Direor

Elebmntary Educ. Dev. Eteentaty Educ. Adminstration Elementary Educ. (Acadenics) n2Deputy /3'rPov. tmplementation /2 (Female) /1 (Female) Q2 (Male) /1

Director /3

0

Ant ir A.ot -Dirket i.As.Dr Ao.Dr stDr i n. DrAssI. Dir. Ao.DrPoueet& Cenrdaoatn /21 Bde Fml )1 (eae2/ diitain Amrsr/n j ~ i Ml (1 Bde NE.Cm Assessment & Pe-ric

Dolt me n 1 I Ofcer n/ | (Male) n2 (Fere) /2 |ort/1 | & Teotbool n /2 Examinations n Trabnig a

I ~ ~ ~ r 1

Note: 1. Exostng, btA merged wih the proposed.2. Proposed. b3. Existkin. mid woutd ontaue. O

AZAD JAMMU & KASHMIR

Figure 2: Organizational Chart of Education Extension Center (EEC)

(Existing and Proposed Combined)

Direcor, PublicInstruction, Secondary

Education /3

DirectorEEC /3

Subject Specialist Subject Specialist Subject Specialist Subject Specialist Subject Specialist Subject Specialist ooMathematics /i Science /I English /1 Urdu /2 Social Studies /2 Multigrade Teaching /2

ana emenTraining Unit

Specialist Specialist in Specialist inin Planning /2 Management /2 Supervision /2

Note: 1. Existing, redesignated.2. Proposed.3. Existing, and would continue.

4H.

109 ANNEX7

Page 12 of 14

AZAD JAMMU & KASHMIR

Figure 3: Organizational Chart of Elementary Education - Existing and Proposed combined

Secretary

Education

Director, PublicInstruction (EE) |

Director, Curr. & Res.

Dev. Center (CRDC)

Officers _ Deputy Distr. Educ.(Male & Fe male - 12) OfRcers (M&F12

Assistant EducationOfficers (M&F - 89)

110 . ANNEX7

PROGRAM IMPLEMENTATION RESPONSIBILITIES - AJK Page 13 of 14

TASK/ COMPONENT DESCRIPTION RESPONSIBLE COORDINATIONOBJECTIVE

Overall program All Ensure program is in ACS and Secretary P&D, Financecoordination line with state of Education,

priorities and through Steeringresources; approval of Committeeannual plans

Coordination of All Ensure collaboration DPIEE, Program DPI Secondary,Program of various institutions Implementation EEC, EducationImplementation involved in program Subcommittee Planning, CRDC,

implementation District LevelOffices, Colleges ofElementaryEducation

Monitoring of program All Regular tracking of All Departments DPIEE, forimplementation program activities, centralizing

expenditures, and informationindicators

Reporting on program All Provide DPIEE All Departmentsimplementation, comprehensivemonitoring and overview of programevaluation activities status

Preparation and All Regular reporting DPIEE All othersubmission of financial required under loan departments andand other reports to agreements, and district offices;federal Govt, IDA necessary for financial perhaps P&D and

reimbursements Finance

Preparation of AU Set annual targets for All Departments DPIEE andAnnual Implementation implementation Education Planningand Investment Plans for centralizing

information

Preparation and Quality Development, trialling CRDC DPIEE Deputyoversight of educational Improvement and research on Director Academics;materials provision educational materials teachers, EEC,

to improve teaching- AEOs; any otherlearning process agency purchasing

or providingeducationalmaterials

Development of in- Quality Improvement of EEC CRDC, DPIEE,service training courses Improvement content knowledge and District Leveland programs for skills of existing offices, Elementaryelementary teachers teaching force Teacher Training

Colleges

111 ANNEX7Page 14 of 14

TASKM COMPONENTS DESCRIPTION RESPONSIBLE COORDINATIONOBJECTIVE

Oversight of activities Quality Training of teachers DPIEE CRDC, EEC,related to development Inprovement and instructors in Elementary Collegesof assessment capacity continuous assessment of Education

techniques

Development of Improving School mapping, Education Planning DPIEEPhysical Planning Equitable Access training of central and Department;Capacity district offices in use EEC/MTU

of information

Oversight of School Improving Procurement and Education DPIEE, Districtconstruction activities Equitable Access supervision of civil Engineering Cell, Offices, Community

works Education Planning MobilizationDepartment Coordinator

Rationalization of Improving Enhance Secretary of Secretary of All DepartmentsStaffing and Staffmg Institutional Education's ability to Educationpolicies Capacity carry out functions

and activitiesefficiently andeffectively

Improving availability Improving Decisions made on the Education Planning, All Departments andand use of information Institutional basis of timely, EMIS, DPIEE. district offices,

_ Capacity accurate information EEC/MTU P&D

Improving working Improving Provision of additional DPIEE and District officesconditions, tools Institutional supervisory staff Educational

Capacity (AEOs). vehicles, Planning forcomputers, etc. procurement

Management Training Improving Training in EEC/MTU DPIEE, Educationalfor Staff Instimtional supervision, use of Planning

Capacity information, use ofcomputers, etc.

Formation of School Improving Improving parental DPIEE with District offices,Committees Community involvement in school technical assistance Education Planning

Participation management and Cellmaintenance

112

ANNEX 8Page 1 of 2

PAKISTAN

NORTHERN EDUCATION PROJECT

Project Supervision

Primary responsibility for supervision arrangements would be with IDA's ResidentMission in Pakistan. Program and project supervision would be conducted semi-annually,with a full mission mounted only annually -- typically in April/May coinciding with thebudget approval cycle and the discussion of operational plans. IDA Headquarters wouldprovide supervision support on particular components of Bank-wide interest (such as thedevelopment of the community schools program in the NA).

Annual supervision missions would: (i) require at least two weeks in the field; (ii)require the services of specialists in education, school construction, management, finance,and community participation; and (iii) review progress of program and project components,as well as procurement, financial statements and disbursements, loan covenants and theimplementation of technical assistance. Specialized skill requirements would be added to themissions according to the needs identified by previous supervision missions.

To aid the Pakistan Resident Mission in ongoing supervision tasks, funds have beenbudgeted under the IDA credit for local consultants (third party) to assist in projectsupervision tasks, including top supervision of construction. These consultants would be inaddition to consultants in procurement, disbursement, and accounting issues who would behired under the credit to train DOE staff in the setup and maintenance of systems acceptableto IDA (budgeted separately). It is proposed that the same "third party" consultants might becontracted to help on supervision of both the Northern Education and Northern Healthprojects, resulting in some economies of scale with regard to travel, etc.

IDA supervision responsibilities would include those activities being carried out byparticipating NGOs (including AKESP and AKRSP) as part of the project. Both supervisionand reporting arrangements in the NA would be made in tandem with DFID, so as to ensureproject cohesiveness and minimize the time burden on implementing agencies. DFID andIDA would also coordinate with regard to approval of key technical assistance contracts andappointments. Although the Government of Pakistan would be the legal Borrower under theproject, all parties involved in project implementation (including participating NGOs) wouldbe kept informed of any decisions by IDA pertaining to the project.

113

ANNEX 8Page 2 of 2

IDA MISSION SCHEDULE

Approx. Activity Staffdates Weeks

11/97 Project Launch/Initial Supervision 6

5/98 Annual Review mission 4

11/98 Interim Review mission 2

5/99 Annual Review mission 4

11/99 Interim Review mission 2

5/00 Mid-Term Review mission 8

11/00 Interim Review mission 2

5/01 Annual Review mission 4

11/01 Interim Review mission 2

5/02 Final Supervision mission/ICR mission 1/ 6

1/ ICR: Implementation Completion Report

PakistanNorthern Education Project

Azad Jammu & Kashmir and Northern AreasExpenditure Accounts by Components - Totals Including Contingencies

(PRs Million)

Improving Quality of Education Increasing Equitable Access and Strengthening Institutional CapacityCurriculum Support to Community Schools Education Community Participation& Education Dangerous and Community Management Monitoring Support to Establishment

Teacher Materials Shelterless School DOE Information & Community of SchoolTraining Dev. Assessments Schools Construction Strengthening System Evaluation Schools Committees Total

I. Investment CostsA. Civil works

Construction 58.2 7.8 - 406.4 370.2 842.6Design and supervision 3.3 - - 2.4 2.9 8.6

Subtotal 61.5 7.8 - 408.8 373.1 - - - - - 851.2B. Vehicles 16.9 1.6 - 3.8 - 30.4 0.1 - 1.4 1.5 55.7C. Equipment 7.7 0.8 0.3 - 4.0 7.6 6.3 - 0.2 0.2 27.0D. Fumiture 4.3 1.1 - 53.8 59.8 0.8 0.4 - - 0.03 120.1E. Books and Materials 22.3 27.3 1.5 - - - - 0.2 0.5 0.6 52.5F. Local Training

Trg. Officials/Proj. Staff 11.5 0.3 0.02 - - 0.6 0.1 0.4 4.3 0.1 17.3Trg. beneficiaries 34.4 1.7 3.3 - 9.6 7.1 - - 0.8 1.2 58.1 _

Subtotal 45.9 2.0 3.3 - 9.6 7.7 0.1 0.4 5.1 1.2 75.4G. Technical Assistance

International consultants 5.6 15.6 41.9 1.8 - 14.1 - 10.7 0.7 - 90.3Local consultants 10.3 11.3 10.7 11.3 - 11.5 1.1 5.6 8.5 5.3 75.5

Subtotal 15.9 26.9 52.5 13.1 - 25.6 1.1 16.2 9.3 5.3 165.8H. Fellowships 30.3 6.8 7.5 - - 7.1 - - - - 51.71. Fund/Honorarium/Subsidies 2.4 2.9 - - - - - - 153.2 0.2 158.7

Total InvestmentCosts 207.1 77.2 65.1 479.5 446.4 79.1 8.0 16.8 169.8 9.0 1,558.0

II. Recurrent CostsA. Incremental Salaries 43.2 - - - - 58.3 4.5 - - - 105.9B. TA/DA Allowances 0.3 - - - - 5.8 - - - - 6.0C. Operations and Maintenance

Vehicles 2.6 0.2 - 0.7 - 5.6 0.02 - - 0.3 9.5Building 6.4 - - - - - - - 12.9 3.5 22.8Equipment - - - - - 0.3 0.8 - - - 1.1

Subtotal 9.1 0.2 - 0.7 - 6.0 0.8 - 12.9 3.8 33.4D. Operational Costs 2.4 - 0.6 - - 41.8 0.2 - - 0.4 45.4

Total Recurrent Costs 55.0 0.2 0.6 0.7 - 111.8 5.4 - 12.9 4.2 190.8

Total PROJECJr COSTS 262.1 77.4 65.8 480.1 446.4 190.9 13.4 16.8 182.8 13.2 1,748.9

Taxes 9.7 4.4 7.3 42.7 37.3 6.3 0.1 2.2 1.1 0.7 111.8Foreign Exchange 76.2 42.7 43.5 49.8 45.2 63.6 5.6 9.2 3&0 2.2 376.1 _

PakistanNorthern Education Project

Azad Jammu & KashmirExpenditure Accounts by Components - Totals Including Contingencies

(PRs Million)

Improving Quality of Education Increasing Equitable Access and Strengthening Institutional CapacityCurriculum Support to Community Schools Education Community Participation& Education Dangerous an Community Management Monitoring Support to Establishment

Teacher Materials Shelterless School DOE Information & Community of SchoolTraining Dev. Assessments Schools Construction Strengthening System Evaluation Schools Committees Total

1. Investment CostsA. Civil works

Construction - 7.8 - 354.1 - . . . - - 361.9Design and supervision - - - 2.2 - - - - - - 2.2

Subtotal - 7.8 - 356.3 - - - - - - 364.1B. Vehicles 1.6 1.6 - - - 19.9 - . - 1.5 24.5C. Equipment 0.9 0.8 - - - 5.5 1.8 - - 0.2 9.2D. Furniture - 1.1 - 48.6 - 0.4 - - - 0.03 50.2E. Books and Materials 7.1 17.7 1.4 - - - - 0.03 - 0.6 27.0F. Local Training

Trg. Officials/Proj. Staff 0.3 0.3 - - - 0.1 0.1 - - 0.1 0.8Trg.beneficiaries 19.6 0.3 3.3 - - 7.1 - - - 1.2 31.4

Subtotal 19.8 0.5 3.3 - - 7.2 0.1 - - 1.2 32.2G. Technical Assistance

Intemational consultants 3.6 13.6 15.3 - - 7.1 - 6.6 - - 46.1Local consultants 5.1 5.1 4.4 4.0 6.3 0.7 2.0 - 5.3 32.7

Subtotal 8.7 18.7 19.6 4.0 - 13.5 0.7 8.5 - 5.3 78.8H. Fellowships 14.0 6.8 7.5 - - 3.4 - - - - 31.71. Fund/Honorarium/Subsidies - 2.9 - - - - - - - 0.2 3.1

Total Investment Costs 52.2 57.9 31.9 408.9 - 49.9 2.5 8.5 - 9.0 620.8

11. Recurrent CostsA. Incremental Salaries - - - - 27.5 1.1 - - - 28.6B. TA/DA Allowances - - -3.5 - - 3.5C. Operations and Maintenance

Vehicles 0.3 0.2 3.6 - - - 0.3 4.4Building - - - 3.5 3.5Equipment - - 0.3 0.2 - 0.5

Subtotal 0.3 0.2 - - - 3.9 0.2 - - 3.8 8.4D. Operational Costs - - - - - 10.2 - - - 0.4 10.7

Total Recurrent Costs 0.3 0.2 45.1 1.3 - 4.2 51.1

Total PROJECT COSTS 52.4 58.2 31.9 408.9 - 95.0 3.9 8.5 13.2 671.9

Taxes 1.2 3.5 2.7 36.0 - 3.7 0.1 1.2 - 0.7 49.1Foreign Exchange 22.6 34.0 20.6 39.5 - 33.4 1.6 5.6 2.2 159.3

O Z

PAKISTANNorthern Education Project

Northern AreasExpenditure Accounts by Components - Totals Including Contingencies

(PRs. Million)

Increasing Equitable Access Strengthening Institutional CapacityImproving Quality of Education and to Community Schools Education Community Participation

Curriculum & Dangerous an Community Managemcnt Monitoring Support to EstablishmentTeacher Educ. Mats. Shelterless School DOE Information & Communit of SchoolTraining Dev. Assessments Schools Construction Strengthening System Evaluation Schools Committees Total

1. Investment CostsA. Civil works

Conshiuction 58.2 - - 52.3 370.2 - - - - - 480.7Design and supervision 3.3 - - 0.3 2.9 - - - - - 6.4

Subtotal 61.5 - - 52.5 373.1 - - - - - 487.1B. Vehicles 15.3 - - 3.8 - 10.5 0.1 - 1.4 - 31.2C. Equipment 6.8 - 0.3 - 4.0 2.1 4.5 - 0.2 - 17.8D. Furniture 4.3 - - 5.2 59.8 0.3 0.4 - - - 69.9E. Books and Materials 15.2 9.5 0.1 - - - - 0.1 0.5 - 25.5F. Local Training

Trg. Officials/Proj. Staff 11.2 - 0.02 - - 0.5 0.1 0.4 4.3 - 16.5Trg. beneficiaries 14.8 1.5 - - 9.6 - - - 0.8 - 26.7

Subtotal 26.0 1.5 0.02 - 9.6 0.5 0.1 0.4 5.1 - 43.2G. Technical Assistance

International consultants 2.0 2.0 26.6 1.8 - 6.9 - 4.1 0.7 - 44.2Local consultants 5.2 6.2 6.3 7.3 - 5.2 0.4 3.6 8.5 - 42.7

Subtotal 7.2 8.2 32.9 9.1 - 12.1 0.4 7.7 9.3 - 86.9H. Fellowships 16.2 - - - - 3.7 - - - - 19.91. Fund/Honorarium/Subsidies 2.4 - - - - - - - 153.2 - 155.6

Total Investment Costs 154.9 19.3 33.3 70.6 446.4 29.3 5.4 8.2 169.8 - 937.2

I. Recurrent CostsA. Incremental Salaries 43.2 - - - - 30.8 3.4 - - - 77.4B. TA/DA Allowances 0.3 - - - - 2.3 - - - - 2.6C. Operations and Maintenance

Vehicles 2.4 - - 0.7 - 2.0 0.02 - - - 5.1Building 6.4 - - - - - - - 12.9 - 19.4Equipment - - - 0.5 .- - 0.5

Subtotal 8.8 - - 0.7 - 2.0 0.6 - 12.9 - 25.0D. Operational Costs 2.4 - 0.6 - - 31.6 0.2 - - - 34.8

Total Recurrent Costs 54.8 - 0.6 0.7 - 66.7 4.1 - 12.9 - 139.7

Total PROJECT COSTS 209.6 19.3 33.9 71.2 446.4 96.0 9.5 8.2 182.8 - 1,076.9

Taxes 8.5 0.9 4.6 6.6 37.3 2.6 0.1 1.0 1.1 - 62.8Foreign Exchange 53.7 88 22.9 10.3 45.2 30.2 4.0 3.6 380 - 216.7

PAKISTANNorthern Education Project

Azad Jammu & KashmirComponents Project Cost Summary

% % Total(PRs Million) (US$ Million) Foreign Base

Local Foreign Total Local Foreign Total Exchange Costs

A. Improving Quality of Education1. Teacher Training 25.4 19.6 45.0 0.6 0.5 1.1 44 92. Curriculum & Education Materials Dev. 20.5 28.5 49.0 0.5 0.7 1.2 58 93. Assessments 9.4 17.8 27.3 0.2 0.4 0.7 65 5

Subtotal 55.3 66.0 121.3 1.3 1.6 2.9 54 23

B. Increasing Equitable Accessand Support Community Schools1. Dangerous and Shelterless Schools 275.9 29.1 305.0 6.6 0.7 7.3 10 582. Community School Construction - - - - - - - -

Subtotal 275.9 29.1 305.0 6.6 0.7 7.3 10 58

C. Strengthening Institutional Capacity1. DOE Strengthening 51.7 28.8 80.5 1.2 0.7 1.9 36 152. Education Management Information System 1.9 1.2 3.2 0.05 0.03 0.1 38 13. Monitoring & Evaluation 2.3 4.3 6.5 0.1 0.1 0.2 65 1

Subtotal 55.9 34.3 90.2 1.3 0.8 2.2 38 17

D. Community Participation1. Support to Community Schools2. Establishment of School Committees 9.1 1.8 10.9 0.2 0.04 0.3 17 2

Subtotal 9.1 1.8 10.9 0.2 0.04 0.3 17 2

Total BASELINE COSTS 396.2 131.2 527.4 9.5 3.2 12.7 25 100

Physical Contingencies 19.2 3.2 22.3 0.5 0.1 0.5 14 4Price Contingencies 97.3 25.0 122.2 0.6 0.2 0.7 22 6

Total PROJECT COSTS 512.6 159.3 671.9 10.6 3.4 13.9 24 110

CD

PAKISTANNorthern Education Project

Northern Areas

Components Project Cost Summary

(PRs Million) (US$ Million) % % TotalForeign Base

Local Foreign Total Local Foreign Total Exchange Costs

A. Improving Quality of Education1. Teacher Training 130.6 44.0 174.6 3.1 1.1 4.2 25 21

2. Curriculum & Education Materials Dev. 8.7 6.9 15.6 0.2 0.2 0.4 45 2

3. Assessments 9.7 20.1 29.8 0.2 0.5 0.7 67 4

Subtotal 148.9 71.0 220.0 3.6 1.7 5.3 32 26

B. Increasing Equitable Accessand Support Community Schools1. Dangerous and Shelterless Schools 46.0 8.2 54.2 1.1 0.2 1.3 15 6

2. Community School Construction 288.6 32.5 321.1 6.9 0.8 7.7 10 38

Subtotal 334.6 40.7 375.3 8.0 1.0 9.0 11 45

C. Strengthening Institutional Capacity1. DOE Strengthening 54.0 25.3 79.3 1.3 0.6 1.9 32 9

2. Education Management Information System 4.6 3.4 8.0 0.1 0.1 0.2 42 1

3. Monitoring & Evaluation 3.7 2.9 6.6 0.1 0.1 0.2 44 1

Subtotal 62.3 31.6 94.0 1.5 0.8 2.3 34 11

D. Community Participation1. Support to Community Schools 117.2 30.7 147.9 2.8 0.7 3.6 21 18

2. Establishment of School Committees - - - - - -

Subtotal 117.2 30.7 147.9 2.8 0.7 3.6 21 18

Total BASELINE COSTS 663.1 174.1 837.1 15.9 4.2 20.1 21 100

Physical Contingencies 25.3 4.4 29.7 0.6 0.1 0.7 15 4

Price Contingencies 171.8 38.3 210.1 1.0 0.2 1.3 20 6

Total PROJECT COSTS 860.2 216.7 1,076.9 17.6 4.5 22.1 21 110

U'

119 ANNEX10

PAKISTAN

NORTHERN EDUCATION PROJECT

IDA Disbursement Schedule

Amounts Cumulative CumulativeIDA Fiscal Year Disbursed Disbursements Disbursement Disbursement

and Semester (-------- US$ Million ----------) Percentage Profile

19981st (July 97 - December 97) 1.7 1.7 7%2nd (January 98 - June 98) 1.7 3.4 15% 3%

19991 st (July 98 - December 98) 2.5 5.9 26%2nd (January 99 - June 99) 2.5 8.4 37% 10%

2000Ist (July 99 - December 99) 2.4 10.8 47%2nd (January 2000 - June 2000) 2.4 13.2 58% 18%

20011st (July 2000 - December 2000) 2.8 16.0 70%2nd (January 2001 - June 2001) 2.8 18.7 82% 34%

20021st (July 2001 - December 2001) 2.0 20.7 91%2nd (January 2002 - June 2002) 2.0 22.8 100% 58%

20031st (July 2002 - December 2002)2nd (January 2003 - June 2003) 70%

20041st (July 2003 - December 2003)2nd (January 2004 - June 2004) 82%

20051st (July 2004 - December 2004)2nd (January 2005 - June 2005) 90%

2006Ist (July 2005 - December 2005) 100%

Closing Date: June 30, 2002

120

ANNEX 11Page 1 of 8

PAKISTAN

NORTHERN EDUCATION PROJECT

Technical Assistance (TA)

A. Technical Assistance for the Quality Component

1. The Northern Education project will support the efforts of the Directorate of PublicInstruction/Elementary Education (DPIEE) in AJK to improve quality through investments in teachereducation, curriculum development, and assessment systems and techniques. Short-term in-servicetraining has in the past been offered by the Educational Extension Center (EEC), whose operationshave lapsed due to lack of funding. The program will provide technical assistance to the EEC inthree areas: (a) developing institutional capacity to plan and manage INSET; (b) expertise in specificINSET areas, like multigrade teaching-; (c) technical expertise for developing in-service courses foreducational managers and supervisors, in a newly created Management Training Unit.

2. Development of locally-relevant textbooks and learning materials is the second focus ofthe quality component. The Curriculum Research Development Center (CRDC) has alreadyundertaken the development of texts for grades 1-3, which are now in use throughout AJK. Work hasbegun on grade 4 texts, but has been suspended for lack of funds. The program will providetechnical assistance to the CRDC to: (a) further strengthen its textbook development progress; (b)develop multi-grade teaching materials; (c) strengthen research capacity; and (d) contribute technicalexpertise in specific areas of curriculum and learning materials.

3. The assessment of student learning in AJK, as elsewhere in Pakistan, rests almostentirely on end-of-year exams constructed with a weak understanding of testing techniques. Theprogram will provide technical inputs in two dimensions of assessment: (a) development,administration and analysis of a sample-based test of learning achievement among grade 4 studentsand teachers, in Math and Urdu; (b) training in the meaning and use of continuous assessmenttechniques by teachers and teacher educators. Both of these activities will be undertaken in theCRDC, with outreach to the EEC and teacher training colleges as appropriate.

4. Technical Assistance is also being sought in the same three broad areas related to qualityof education in the NA. In teacher training, TA will support the implementation of an innovative,field-based teacher training program (FBTD), and will provide training in specific areas of teachereducation. TA for curriculum development includes assistance to create and conduct trainingworkshops for textbook writers and to assist in reviewing and in field-testing new textbooks. TA willalso contribute to the development of multi-grade materials and the development of a guide for low-cost teaching materials. TA for assessment will be in two areas: design and administration of acriterion-referenced achievement test, and training in continuous assessment.

B. Technical Assistance for the Equitable Access Component

5. For the Directorate of Education (DOE) in the NA to be able to implement the NEP andfunction as a qualified client vis-a-vis communities, other government agencies, and external

121

ANNEX 11Page 2 of 8

consultants in areas associated with planning and development educational infrastructure, it needsinitial help and support to develop planning tools, establish capacity in several professional fields andadministrative routines, and generally enhance professional skills in order for the staff to be able tomeet the challenge successfully. The NEP would support the effort of the DOE to expand andimprove its professional capacity to plan and implement educational infrastructure, primarily in thecontext of the program but also with a view to a long-term impact on the Directorate's capacity in thisfield. This will happen in the form of: a) a revision of current type designs for elementary schools;b) design and initial execution of school mapping; and c) training for DOE site engineers and villageartisans.

6. Revision of type designs. The Project would support the development of revisedstandard designs for elementary schools. These new type designs should respond to the particularconstraints and demands of the NA and be developed on the basis of accumulated experience gatheredby government and private agencies involved in school construction in the area. The work would beawarded to a group of reputed architects and engineers with a proven capability to developeducational facilities suitable for construction in a rural mountainous context with seismic activity,climatic extremes, a human resource base with limited skills, and a limited selection of buildingmaterial available.

7. School Mappin . The development of a capacity within the DOE to collect and processsuch data, known as school mapping, is seen as essential in order for the Directorate to be able toplan future investments in educational infrastructure efficiently, and the project would thereforesupport the required development of data collection and planning tools and training of staff needed forthe execution of the associated work routines. In the future, this task will be the responsibility of thePlanning Department which will be sufficiently strengthened in this respect. In order to assist theDOE developing one of the most essential tools needed for educational planning, the school mapping,the NEP will provide consultancy assistance for the formulation, design, and testing of a schoolmapping tool at the very early stages of project implementation.

8. Training in School Construction and School-based Maintenance. The training associatedwith construction of school buildings in partnership with the communities in the NA has the followingtarget groups: a) DOE project management and site supervision; and b) artisans and other skilledlabor in the communities.

9. In order for the DOE to be able to implement the construction component under theNEP in partnership with the communities, it will need to take on new technical staff in the Directorateand contract field staff to be part of the community dialogue and to supervise constructionimplementation. This staff will need to be trained in operating a system for monitoring and reportingof construction progress, material consumption, expenditure, and quality control; and in working with.community-based organizations. The consultancy shall assist the DOE in building its technicalcapacity in these areas. This target group would include: One Senior Engineer; one Architect, and 15site engineers and field coordinators. The actual construction on site would be carried out by artisansand skilled labor from the villages where the schools are to be built. They would be nominated fortraining by the community and selected by the DOE and the consultant in common and providedtraining in specific aspects of skilled labor directly related to the construction of the standard typeschool buildings built by the project. At later stages, the trained group of builders would themselves

122ANNEX 1 1Page 3 of 8

function as master builders and trainers on other building sites. This target group would include atotal of 210 artisans from each of the following trades: masons, steel binders, carpenters, and 90artisans each working as: painters, plumbers, and electricians.

10. In AJK, the following support will be provided in addition to the construction of schoolbuildings: a) consultant support for a revision of the current standard type designs for primaryschools buildings; and b) consultant support for the formulation and testing of a school mappingactivity. The objective of the revision to the standard school design will be to develop type designswhich are responsive to the climate variations, are functionally efficient, need a minimum ofmaintenance, and are cost-effective. The scope of work should include the development of a designfor a simple sanitary unit suitable for construction in environments with little experience in the useand maintenance of modern sanitary facilities. In view of the limited experience with schoolmapping and the associated physical planning process in the Planning Department of AJK, consultantsupport will be provided. The objective of the support is to train and help the technical staff in theDepartment in the use of collected data in the planning process associated with the identification ofschool sites and deployment of teaching space. The input from the consultant will be made availablein two parts connected with the annual planning cycle.

C. Technical Assistance for the Institutional Strengthening Component

11. Services of national consultants, one for supervision, monitoring and evaluation and thesecond for accounting, procurernent and disbursement matters will be provided to the DOE in NA.The consultants will help the DOE develop supervisory practices, evaluation systems, procurement,accounting and disbursement procedures. The consultant for supervision/monitoring and evaluationwould work with the AD (Curriculum and Materials Development), AD (Teacher Training andSupervision), AD (Examination and Assessment), AD (Monitoring and Evaluation) in DOE andDDEOs/AEOs in the districts who are counterparts of these three ADs. National consultants wouldalso work with other consultants working on teacher training, examination, assessment, curriculumand materials development. The consultant for Accounting! procurement/disbursement would work inconjunction with AD (Procurement), AD (B&A/Disbursement) and their counterparts in the districts.

12. In AJK, institutional capacity will be strengthened by supporting the DPI(EE) with thefollowing TA: a) an international consultant and two local consultants to develop managementsystems, procedures for procurement, disbursement, M&E, keeping records, filing system, developnecessary instruments and software packages to be used by the officers at Department level, DPIlevel, district level and below district, EEC and CRDC and to train the staff in the use of thesepackages; and b) study tours of selected persons from the DPI and district offices; and c) training ofDPI staff in computer skills.

13. In addition, services of national consultants will be required to strengthen the EMISsystem in both areas. Consultants will help conduct information needs analyses, preparequestionnaires for data collection, train computer and data entry staff, develop training materials fordata collection and decision making, and so on. The ultimate aim would be that the EMIS becomes atimely source of basic planning information.

123

ANNEX I IPage 4 of 8

D. Technical Assistance for the Community Participation Component

14. In the NA, the community participation component will benefit from the experience ofAKRSP and AKESP. These AKDN organizations will be involved as follows: a) AKESP willprovide assistance in the FBTD program and the Community School Development Project; and b)AKRSP will develop and deliver training workshops for AEOs and other DOE staff.

15. The project will provide foreign and national technical assistance to the DOE for thefurther development of the community schools program. The foreign technical assistance will be aspecialist in community school finance issues. The consultant will work in conjunction with aplanned visit by two local finance consultants under the AKESP's implemented Community SchoolDevelopment Project. The DOE consultant would pay particular attention to the wider financialissues currently facing the community schools program as a whole. Although the Northern Areas areexperimenting with the establishment of community schools on a much wider scale than manyprovinces, there are other experiences with community schools within Pakistan that might proveuseful in the future development of the community school program. The project will support studytours to different parts of Pakistan (Karachi, Balochistan, and NWFP) for DOE and AKESP staffinvolved in the community school program.

16. Given the relative lack of experience with community mobilization techniques within theDepartment of Education of AJK, technical assistance in this area will be an important factor in thesuccess of the proposed program. An NGO or a private firm with extensive experience in communitymobilization would be most appropriate for such an assignment. The technical assistance wouldconsist primarily of a coordinator for community participation activities with a strong background intraining and social mobilization initiatives. The community mobilization coordinator would beexpected to d.ivide his/her time between on-site training of AEOs and school committees in the pilotdistrict, and wider education efforts and reporting functions at the level of the DPIEE (for example,the arrangement of two study tours for policy makers and DPIEE and district staff to look atcommunity mobilization efforts elsewhere in Pakistan).

E. Monitoring of Technical Assistance

17. The effective use of technical assistance is expected to have a significant impact onoverall project performance and longer-term sustainability issues. Given this fact, monitoring of thetechnical assistance itself would form part of regular DOE annual reviews and IDA and DFIDsupervision responsibilities. Moreover, the project Mid-Term Review would include a more detailedexamination of the role and performance of technical assistance under the project. While theevaluation of technical assistance, particularly that geared to building institutional capacity, tends to befairly subjective in nature, some suggestions are made below for indicators/questions to be addressedas part of both the annual and Mid-Term Reviews.

124

ANNEX 11Page 5 of 8

General Indicators (across components)

Type of TA Indicator Baseline Target Source(s)

All TA contracted on Annual plans 100% of contracts Responsibletime planned agency (DOE)

reportingdirectors

All TA work Annual plans 100% of contracts DOE reporting_________________ completed on time planned/completed directors

All Procedures (formal Annual plans 100% of contracts DOE reportingor informal) are in initiated directorsplace in DOE forregular review ofTA work

Medium to long- Contracts require Annual plans 100% of relevant DOE reportingterm institutional the contractor to contracts entered directors; staffdevelopment TA produce as part of into during year responsible for

workplan: (a) a procurementtimeline and goals procedures.for specific skillstransfer; and (b) an"exit" plan.

Training Participants Participant self- 100% of trainings Participantconsider training assessment; DOE during year evaluation forms;useful, and are reporting director DOE reportingactively applying assessment directors'skills/knowledge assessment;

selected interviewswith participants

_________________ _post-training

Short-term TA Product Annual Plans 100% of relevant DOE reportingwith concrete satisfactory and in contracts directors; othersproduct(s) use completed during as appropriate (i.e

year teachers on new._______________ school designs)

125

ANNEX 11Page 6 of 8.

Issues/Questions for Midterm Review of Technical Assistance Input

Quality Component

(a) Teacher Training

(i) College-Based training: what percent of teacher trainers (by own assessment) areactively using new skills/knowledge;

(ii) In-service Training: are DOE/EEC staff actively involved in developing in-servicecourses?;

(b) Curriculum Development

(i) is there identified pool of local authors able to develop quality textbooks?

(ii) are DOE/CRDC staff able to: plan/direct/implement the development of materials?

(c) Assessment

(i) was the administration of sample-based learning achievement test to 4th graders inmath and Urdu completed during first year of project? Were results widely disseminatedand discussed (in DOE meetings, seminars, etc)?

(ii) is there a broad understanding among DOE academic staff, teacher trainers andclassroom teachers exposed to training of the goals and methods of continuousassessment?;

Expanding Equitable Access

(a) School Designs:

(i) were these revised and are they in use? What is opinion of them by: engineers;commnunities; teachers; students?

(b) School Mapping:

(i) was school mapping done? On time?

(ii) is the information collected being incorporated into regular data collectionprocedures? Are DOE staff able to manipulate data base? Is information widelyavailable? Is it being used? How?

(c) Training:

126

ANNEX 11Page 7 of 8

(i) in the NA, are trained local artisans able to do an adequate job in the communityschool construction program?

Institutional Development

(a) Administrative Procedures and Supervision

(i) does the DOE have functioning procurement, accounting, monitoring anddisbursement procedures in place, understood by DOE staff?

(ii) were job descriptions developed for all positions, and are staff evaluated on the basisof defined responsibilities?

(iii) how do AEOs currently view supervision responsibilities? Have guidelines forsupervision been developed? Distributed? Are they used? When and how?

(b) EMIS

(i) was information needs analysis conducted? Were data collection procedures revised?Are new procedures understood by DOE staff at all levels? Is information accessibleand used for making decisions at different levels of the system?

(c) Training, Fellowships, Study Tours

(i) are DOE staff (by own assessment) actively using experience and skills? Are theyable to articulate specific lessons/instances of use?

Increasing Community Participation

(a) Training of AEOs:

(i) in both the NA and AJK, are AEOs able to conduct trainings of community basedorganizations across a range of subjects, including school based maintenance, financialmanagement, etc.? How many trainings have been done? What do community groupsthink of AEO trainings? What are AEO opinions about the role of communities inschool management? Do they think their own opinions have changed? If so, how?

(b) Development of programs

(i) are there written guidelines concerning (in the NA) the workings of the communityschools program; and (in AJK) the roles and responsibilities of school committees? Arethese widely known?

(ii) in NA -- has a long term plan for financial sustainability/support to communityschools been developed? Has it been widely discussed?

PAKISTANNorthern Education Project

Azad Jammu & Kashmir and Northern Areas

Technical Assistance and Training /a

National Consultant International Consultant Fellowships TotalMonths $ '000 Months $ '000 Months $ '000 Months $ '000

A. Improving Quality of Education1. Teacher Training 36 219.3 6 123.4 31 638.5 73 981.22. Curriculum & Education Materials Dev. 55 238.7 16 334.5 22 149.7 93 722.83. Assessments 53 230.6 44 910.8 6 162.3 103 1,303.7

Subtotal 144 688.5 66 1,368.7 59 950.5 269 3,007.8

B. Increasing Equitable Accessand Support Community Schools1. Dangerous and Shelterless Schools 110 245.3 2 40.3 - - 112 285.72. Community School Construction - -- - - .0 0.0

Subtotal 110 245.3 2 40.3 0 0.0 112 285.7

C. Strengthening Institutional Capacity1. DOE Strengthening 59 245.8 15 308.9 18 151.0 92 705.82. Education Management Infornation System 6 24.6 - - - - 6 24.63. Monitoring & Evaluation 24 111.4 12 215.9 - - 36 327.3

Subtotal 89 381.8 27 524.8 18 151.0 134 1,057.7

D. Community Participation1.SupporttoCommunitySchools 216 285.7 1 15.5 - - 216 301.22. Establishment of Education Committees - - - - 0 0.0

Subtotal 216 285.7 1 15.5 0 0.0 216 301.2

Total 558 1,601.4 96 1,949.4 77 1,101.6 731 4,652.3

a/ TA also includes substantial training activities.

xOO-0 _

128 ANNEX 12Page lof 12

PAKISTAN

NORTHERN EDUCATION PROJECT

Accounting. Financial Reporting and Auditing Arrangements

L Project Financial Management Reports

Summary tables on sources and uses of funds, cost variance by project activities, unitvariance and contract expenditure will be submitted to IDA on a quarterly basis by theDirectorate of Education (DOE) of the NA and the Directorate of Public InstructionElementary Education (DPIEE) of AJK. The following summnary tables are shown in thisAnnex:

1. Summary of Sources and Uses of Funds -NA2. Summary of Sources and Uses of Funds - AJK3. Cost Variance Report by Project Activities - NA4. Cost Variance Report by Project Activities - AJK5. Unit Variance Report (critical activities) - NA6. Unit Variance Report (critical activities) - AJK7. Contract Expenditure Report (Goods and Works) -NA8. Contract Expenditure Report (Goods and Works) - AJK9. Contract Expenditure Report (Consultants) -NA10. Contract Expenditure Report (Consultants) - AJK

The summary tables above imply that both NA and AJK will have arrangements toproperly record physical inputs and cost information, procurement information, etc. for each of theproject components on a monthly basis. In addition to these tables, tables of MonitoringIndicators for Project Objectives (for each of the areas) would be required (Annex 6). Generalindicators for Monitoring of Technical Assistance have also been agreed with the Government(Annex 11).

2. Provisions for Accounting/Disbursement/Procurement Staff

Appropriate positions for strengthening financial management in the projectimplementing agencies (DOE and DPIEE) have been agreed. These staff will be in charge ofaccounts keeping, procurement matters, disbursement and progress reporting. In theNorthern Areas the position of Planning, Development and Monitoring Director has been agreed.This position will be supported by an Assistant Director (Planning), an Assistant Director (ProjectMonitoring), an Accountant (Procurement) and an Assistant Accounts Officer (Budget, Accountsand Disbursement). In Azad Janmu and Kashmir, the project provides for a Deputy Director forElementary Education Development and Program Implementation to be assisted by an AssistantDirector (Procurement and Disbursement) and a Budget Officer. The identified accounting andfinancial staff will be competent and conversant in Bank's procurement and disbursement policiesand procedures.

129 ANNEX 12Page.2 of 12

3. Technical Assistance and Training

A provision for strengthening financial management through technical assistance andtraining for a total of 252 person/months has also been agreed for both areas (Annex 7).Given limited institutional capacity, technical assistance and training will be provided to staff onaccounting/disbursement and procurement matters. Details are as follows:

Technical Assistance and Training in Management, AJK NAAccounting, Procurement (person/ (person/and Disbursement months) months)1. International Consultants(a) Set-up management systems 8 7

2. National Consultants(a) Supervision 10 9(b) ProcurementVDisbursement/Accounting 16 30(c) Management and TA 12 30(d) Monitoring and Evaluation 18 12

3. Staff Development Training 18 82

Sub-totals for each area 82 170

PROJECT TOTAL: 252 person/months

4. Auditor Acceptable to the Bank

The Auditor General of Pakistan (AGP) is acceptable to the Bank and will be used to auditthe project financial accounts, SOEs and procurement documentation. The AGP has been acceptedunder SAPP to validate recruitment, selection of sites, etc.

5. Other Implementation Arrangements

These include: (a) overall program and policy directions, annual plans and budgets agreed at ahigh level Program Steering Committee (which include not only the line agencies but alsorepresentatives from Planning and Development and the Finance Departments; (b) ProjectInplementation Committees within the Departments of Education to coordinate planning andimplementation, monitor progress and resolve issues related to project implementation; and (c)detailed annual planning with donors (in terms of activities, budget requirements, reform measuresto be implemented and so on ) based on progress during the previous year.

QuarterlySummary of Sources and Uses of Funds

Northern AreasPAKISTAN- Northern Education Project

as at _, l9xxin applicable currency

Actual _ Pared Expenditure V variance | SAR

Current Year-To Cumulative Current Year-To Cumtdative current Year-To cumulative life ofQuarter Date To-Date Date To-Date Quarter Date To-Date Project

Project FinancingGovemment FundsIDA FundsDFIDCommunity 0

Total Financing

Project ExpendituresCivil WorksGoods'Technical Assistance2

Grants (Comm. Schools)Other'

Total Expenditure _

Table I

' Includes vehicles, equipment, furniture and Books and materials

2Includes consultants and training

3 Includes salaries and operational costs U

QuarterlySummary of Sources and Uses of Funds

Azad Jammu and KashmirPAKISTAN-Northern Education Project

as at , l9xxin applicable currency

Actual Planned Expenditure Vanance SARCurrent Year-To Cunulative Cuifent Year-To Cumulative Current Year-To Couinlative Life of_________ Quarber Date To-Date Quarter Date To-Date Quter Date To-Date _ Project

Project FinancingGovernment FundsIDA FundsCommunity

Total Financing . . .

Project ExpendituresCivil WorksGoodsTechnical AssistanceOther

Total Expenditure - _ -. ,

Table 2

r>CD

0 k

QuarterlyCost Variance Report

Northern AreasPAKISTAN-Northern Education Project

as at ,l9xxin applicable currency

_________ Actual _ _ _ __PandExpenditure __ _ _ _ _ _ _ _ Vaiance SAR

Nroject Atvities Current Year-To Cumulative Current Year-To Cumnulative Current Year-To Cunulative Life of_Quarter Date To-Date Quarter Date To-Date Quater Date To-Date Project

A. IMproving Quality Of EducatIon _ 1. Teader Training2. Cumiculum & Education MaterialsDev.3. Assessments

b Increasing Equitable Access andSupport Conununity Schools1. Dangerous and Shelterless Schools2. Community School Construction

C. Strengthening InstitutionalCapacity

1. DOE Strengthening2. Education Management InfonnationSystem3. Monitoring & Evaluation

D. Conununty Participation1. Support to Community Schools

Total Proec Expendlture _ _

Table 3

C D

ot-

QuarterlyCost Variance Report

Azad Jammu and KashmirPAKISTAN-Northern Education Project

as at _,19xxin applicable currency

Actual Paed Expenditure | Vanance r SARProject Activities Current Year-To CumTDative Current Year-To Cumulative Cuarent Year-To Cumulative Life of__________________________u_eer Date To-Date Date To-Date uatr Date To-Date Project

A. Improving Quality of Education1. Teacher Training2. Cuniculum & Education MaterialsDev.3. Assessments

h. Increasing Equitable Access andSupport Community Schools1. Dangerous and Shelterless Schools

C. Strengthening InstitutionalCapacity1. DOE Strengthening2. Education Management InformationSystem3. Monitoring & Evaluation

D. Community Participation-. Establishment of Education

Comm ittees__ _ _ _ _ _ _ _ _ _ _ _ _ _ __ _ _ _ _ _ _ _ __ _ _ _ _

Total Project Expenditure _

Table 4

- _

QuarterlyUnit Variance Report

Northern AreasPAKISTAN-Northern Education Project

as at _,19xxin applicable currency

Actual Planned Expenditure Variance SAR Unit CodeProject Activities Units Unit Cost Cumulative Units Unit Cost Cumulative Cumulative Cumulative Project Total Cost

To-Date To-Date To-Date To-Date Units(Cost) (Units) .

1. Increasing Equitable Access andSupport to Community Schools(a) Construction of new schools(b) Reconstruction of schools

2. Improving Quality of Education(a) Field Based Teacher Training(i) Government-run(ii) AKDN-run _

Table 5

CD

Quarterly

Unit Variance Report

Azad Jammu and KashmirPAKISTAN-Northerm Education Project

as at , 19xxin applicable currency

.__________ Actual __I_lanned_Expenditure Variance SAR Unit CodeProject Activities Units Unit Cost Cunulative Units Unit Cost Cumulative Cumulative Cumulative Project Total Cost

To-Date To-Date To-Date To-Date Units_________ __________ (Cost) ~~~~~~~~ ~ ~~~(Units) _ _ _ _ _

1. Increasing Equitable Access andSupport to Conmunity Schools(a) Reconstruction of Dangerous

schools(b) Construction of Shelterless

schools,2. Improving Quality of Educktlon

(a) IC Trainin _

(b) Multigrade Training(a) Ist Inset Module(d) 2nd Inset Module .

Table 6

I!O m

QuarterlyContract Expenditure Report

Goods and Works (for contracts above prior review threshold)

Northern AreasPAKISTAN-Northern Education Project

as at _,19xx

Contract Contract Number Supplies Nationality Zip Code Contract Value Amount Amount Paid toDescriptionl ifU.S. Invoiced to date date

EquipmentInternational Competitive BiddingNational Competitive BiddingNational ShoppingTo Be Determined

Cvil WorksNational ShoppingNational Competitive BiddingDired Contracting

Table 7

>CD\w0 1o

QuarterlyContract Expenditure Report

Goods and Works (for contracts above prior review threshold)

Azad Jammu and KashmirPAKISTAN-Northern Education Project

as at _,19xx

Contract Contract Number Supplies Nationality Zip Code Contract Value Amount Amount Paid toDescription/i if U.S. Invoiced to date date

EquipmentInternational Competitive BiddingNational Competitive BiddingNational ShoppingTo Be Determined

Civil WorksNational ShoppingNational Competitive BiddingDirect Contracting

Table 8

A >

t S

QuarterlyContract Expenditure Report

Consultants (for contracts above prior review threshold)

Northern AreasPAKISTAN-Northem Education Project

as at _,19xx

Contract Description Contract Number Consultant Nationality Zip Code if U.S. Contract Value Amount Invoiced to date Amount_ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ P aid to date

Quality and Cost-Based Selection

Qualifications

00

Individual

Single-SourceSelection

Table 9

QuarterlyContract Expenditure Report

Consultants (for contracts above prior review threshold)

Azad Jammu and KashmirPAKISTAN-Northern Education Project

as at , 19xx

Contract Description Contract Number Consultant Nationality Zip Code if U.S. Contract Value Amount Invoiced to date Amount_ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _PPa dd tto ddat

Quality and Cost-Based Selection

Qualifications

Individual

Single-SourceSelection_._.

Table 10

m

140

ANNEX 13Page 1 of 6

PAKISTAN

NORTHERN EDUCATION PROJECT

Economic Evaluation

A. Returns to Education

1. It is well established internationally that education contributes to improvements innutritional levels and child health and to lower fertility. In addition, education contributes to growthin incomes by raising productivity and to greater equality. Research for the World Bank's 1991World Development Report suggests that increasing the average amount of education of the laborforce by one year, when this average is three years or less, raises aggregate real output by 9 percent.

2. Difficulties with data collection and information for the NA and AJK, lack of data onearnings in these regions and problems in valuing the broader social benefits that would accrue withthe NEP project, make formal cost-benefit and rates of return analyzes very difficult. However, ratesof return to schooling in Pakistan can be used as a proxy (Table 1). These rates are consistent withother studies which indicate that: a) primary education has a highest rate (private and social) andshould be therefore the priority investment (a rate of return of 13 percent-the social rate for primaryeducation in Pakistan-implies that, with reinvestments, assets can be doubled in less than 6 years); b)the returns decline with the level of schooling; and c) the private returns are higher than the socialreturns. In sum, social and private rates of return for schooling suggest that investments in primaryeducation have high returns in Pakistan (Behrman, 1995).

Table 1. Rates of Return to Schooling in Pakistan (1975)(%)

Primary Secondary Tertiary

Private 20.0 11.0 27.0

Social 13.0 9.0 8.0

Source: Psacharopoulos (1994). "Social" rates of return include private andpublic costs (but not social benefits beyond private benefits).

141

ANNEX 13Page 2 of 6

3. Pakistan has foregone substantial economic growth because of the low schooling ingeneral, the low schooling of females in particular, too great concentration, of schooling at tertiaryrather than basic primary and secondary levels, and generally low schooling quality. As mentionedabove, beyond the economic productivity effects of schooling, there are important benefits--particularly of female schooling--on health and nutrition, mortality and fertility. The total estimatedvalues of these benefits alone (ignoring economic benefits) exceed recurrent costs of basic schoolingof females (Behrman, 1995). Summers (1992) estimates the "net social benefits" of increasingschooling in Pakistan in terms of mortality and births averted that suggest total discounted benefitsexceed recurrent costs. He states "it seems reasonable to conclude that the return to getting moregirls into school is in excess of 20 percent and may well be considerable greater...'.

4. In addition, data from the Pakistan Integrated Household Survey (1991) confirm theresults above and suggest that education has an important effect on, inter alia: a) fertility levels, boththrough increased use of family planning and delayed marriage; b) incidence of disease andimmunization; and c) children's school attendance. In Pakistan, the number of children born isinversely related to both wife and husband's levels of education. Uneducated women give birth to anaverage of 4.6 children, in contrast to 3.7 for women with primary education and 3.1 for women withsecondary education. Eighty one percent of children 5 years old and below with primary educationmothers were immunized, against only 70 percent of children with uneducated mothers. Theincidence of child diarrhea is lower for children born to educated mothers (particularly femalechildren). Finally, mother's education is an important predictor of school attendance: children ofeducated women are equally likely to be in school, regardless of gender. In sum, education of girlsseems attractive compared with most alternative investments.

B. Cost-Effectiveness Analysis

5. The overall aim of the NEP project is to improve quality and access of elementaryeducation, especially of female students. The design and preparation of the project were aimed atdeveloping the most cost-effective approach to achieving these objectives. In both NA and AJK,where the needs are very basic and the system is rudimentary, the project would focus on improvingparticipation in schools, increasing learning achievements and improving the capacity to run thesystem properly. The project proposes the most cost-effective package of investments in physicalinfrastructure, teacher education, development of instructional materials and improved institutionalcapacity, for the conditions of the north. A few examples of the different alternatives analyzed arepresented below.

6. School construction. rehabilitation and maintenance. In order to achieve overall costefficiency and long term sustainability, construction under the project will be implemented with theactive participation of the beneficiary communities. In the NA, the Directorate of Education willadopt a self-help strategy and work in partnership with the communities for the construction of theirschools. In AJK, the reconstruction of dangerous and building of shelterless schools will be done inconjunction with the formation of school committees in the pilot district.

7. The self-help strategy is based on a partnership agreement between the government andthe community, and has proven to have economic as well as social advantages. Benefits includebetter quality construction and the resultant savings that accrue to both government and communities,as well as greater willingness on the part of the community to maintain their assets. The alternative

142

ANNEX 13Page 3 of 6

of utilizing the Public Works Department (PWD) for the school construction activities was rejected.PWD is a government institution following rigid rules and procedures. In the case of schoolconstruction, these procedures often fail to produce expected quality, on time, and at a justifiablecost. Moreover, the PWD approach does not include community strategies and is very reluctant toinvolve the user in the implementation process. In Table 2, the costs of a three-room school buildingof sq. ft. 1,800, constructed by three different modalities are assessed. It would cost the governmentRs.833,000 and Rs.808,000, if the PWD or private contractors are used in school construction.School construction with the self-help model would cost the government Rs.645,000, or about 21percent less than the PWD/contractors alternative.

Table 2. School Construction Costs (Rs. '000)

PWD Private contractor Self-help model

Institution Cost Share 833 808 645

Community Cost Share - - 276

Total Unit Cost 833 808 921

The community input will vary with the different types of structures, location and soon (here it is calculated at 30 percent). The cost level is an average, based on alocation with easy access. It includes boundary, walls and sanitary units.

Source: Aga Khan Housing Board, PWD and mission estimates.

8. The participatory construction process will have additional costs and benefits.Construction in partnership with communities will, in some cases, take slightly longer time than ifimplemented through a commercial contractor. In order to secure quality, it will also require trainingof the community labor. This reduced cost savings can be justified because community involvementwill invariably establish a feeling of ownership and responsibility. The community will look after thebuilding after the construction. It will be much easier to establish a maintenance routine under suchcircumstances than in cases where the work had been done by outsiders, without involvement of thelocal people. By involving local artisans in construction, technical skills and knowledge would betransferred and there would always be qualified people available to undertake the schools repair workbeyond regular maintenance.

143

ANNEX 13Page 4 of 6

9. In view of the fact that the Civil Engineering Cell of the Department of Education ofAJK dos not have any experience with community participation, the participatory approach toconstruction will be different than in the NA. As has been the pattern in the past, communities wouldbe asked to donate the land for the construction of shelterless schools. In addition, construction willfollow the formation of school committees in the pilot district. The organized school committee willoversee the construction process and will be in charge of ongoing maintenance of the newlyconstructed school.

10. Teacher Training. The project is also focusing on improving the teaching and learningprocesses, in particular the quality of the teaching staff. In the NA, a large part of the investments inteacher training is in the construction and staffing of two General Colleges of Elementary Training(GCET) for women, which are badly needed, and in quality improvements at the male college. Theseinvestments will create institutions which last long beyond the life of the project, providing a much-needed service to the area.

11. The other major investment in teacher training in the NA is in Field Based TeacherDevelopment (FBTD). This program is a model of cost-effective training for areas with great need.It requires no investment in facilities, as it is conducted in existing schools and district offices.Recurrent costs per training average $750, inclusive of salaries for substitute teachers and materialswhich teachers bring back to their schools. The effectiveness of FBTD lies not only in its modestcost, but in its intensive focus on practical skills. Half of the four-month training period is spent insupervised teaching. With two Master Trainers supervising only 10 students, teacher trainees receivefar more effective guidance than in the standard, college-based practicum. Because of the low traineeto trainer ratio, Master Trainers are also able to assist individual trainees in overcoming individualweaknesses in content areas. Finally, the expansion of FBTD will also expand the pool of MasterTrainers, individuals who will go on to play key roles in the educational system of the NA. Theirown training, and the experience that they gain supervising teacher trainees in actual classrooms willensure that the administrative staff of the education system is in touch with the real needs of itsteaching force.

12. In AJK, the project will focus on the institutionalization of an in-service teacher trainingprogram (INSET) through the EEC as a means for knowledge and skills upgrading.' INSET coursesare very modest in overall cost, with recurrent costs averaging well under Rs. 1,000 per trainee,including the provision of materials. If done well, INSET can provide an enormous boost to qualityin the teaching/learning process. The effectiveness of INSET rests fundamentally on the quality ofthe course and its relevance to teachers. Thus, the program supports improved capacity in the EECfor determining teacher needs and training and TA to strengthen technical expertise.

13. Community Schools Program. Several alternatives for increasing equitable access wereconsidered during project preparation. Recent research in Pakistan confirmed that many private andNGO-run schools outperform government schools both in terms of student retention and achievementlevels, often despite a much lower level of per-student expenditure. Reasons for these results are

1 Support for four of AJK's 10 teacher training colleges was cut from the project post-appraisal in light ofoverall cuts to the project. It is hoped that support for quality improvements and rationalization of AJK's pre-service teacher training may be included under SAP.

144

ANNEX 13Page 5 of 6

varied, but include evidence that teachers' attendance in private and NGO schools is more regular,and that teachers tend to be more motivated. Increased parental involvement in school managementissues (whether in government or non-government schools) also appears to have a positive effect onenrollment, teacher accountability, and ultimately on student achievement. Given this evidence, theBank in recent sector work has encouraged the Government to work in partnership with the privatesector, NGOs, and local communities as potentially the most cost-effective strategy for improving andexpanding educational opportunities.2 The project's support to the NA administration's communityschools program is very much in line with these recommendations.

14. Faced with a large and growing unmet demand for primary education, the basic choicefacing the government (and the project) is whether to try to expand access to schooling throughtraditional or more experimental means. The "traditional" method of expanding access in the NA hasnormally involved getting authorization and a budget for a building, waiting (sometimes years) for thebuilding to be completed, and fighting for the authorization of a teaching post before the school couldofficially be opened.3 Frustrated with the bureaucratic obstacles and delays associated with thetraditional method, the government in 1994 began exploring an alternative in the form of subsidies tocommunity-run schools. Because the program did not initially involve construction (communitiesdonated space for the school) or additional posts (the communities hired teachers according togovernment guidelines), it had a significant advantage in getting children into schools much fasterthan the traditional method.

15. Community schools are also cheaper (at least to the government) than traditionalgovernment schools, although how much cheaper is difficult to tell given the newness of the programand the need to make and evaluate adjustments to the levels of government subsidy. As of 1994-95,the estimated level of yearly-per-student recurrent expenditure for government primary schools in theNA was Rs. 1,227. In contrast, in 1995-96, given the levels of enrollment and subsidy to communityschools, the per-student expenditure is approximately Rs.350. This level of per-student expenditure isclearly unreasonably low, however, if a minimum standard of quality is to be maintained. Under theproject, it is proposed to increase the level of funding to community schools such that the yearly per-student expenditure would be approximately Rs. 790--still significantly less than that of regulargovernment schools, but sufficient to ensure a reasonable level of quality inputs.4

16. With regard to the effectiveness of community schools versus traditional schools inretaining and imparting learning to students, it is also probably too early in the program's life tocome to any firm conclusions. Clearly there need to be substantial investments in qualityimprovements in both types of schools. As indicated above, however, evidence from other parts of

2 See Improving Basic Education in Pakistan--Community Participation. System Accountability, and Efficiency.World Bank, 1995 (forthcoming in grey cover).

3 Until 1995, no additional teaching posts had been authorized for the NA since 1986.

4 Cost-effectiveness analysis should also look at the level of contribution of parents to the schooling of children,in both community and traditional schools as part of the overall cost. Reliable data are, however, lacking, althoughit may be presumed that the level of community/parental contribution may be higher in the case of communityschools.

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ANNEX 13Page 6 of 6

Pakistan indicates that where parents and communities are more involved in their children'sschooling, both enrollment and achievement levels tend to be higher. If the same is assumed to holdtrue in the Northern Areas, then it seems reasonable to expect that, on average, community schoolswill prove to be as or more effective a means of schooling than traditional government schools.

146 ANNEX 14Page 1 of 3

PAKISTAN

NORTHERN EDUCATION PROJECT

Selected Documents in Proiect File

I. Government of Northern Areas (NA) Documents

Directorate of Education, NA. PC- I Northern Education Project. Northern Areas. 1996-2002.NA, Pakistan, 1996.

Directorate of Education, NA. A Report on Northern Areas Education Project IdentificationWork shop. NA, Pakistan, 1995.

Directorate of Education, NA. Project Implementation Plan (PIP). Conducted by Four ValleysEngineering Consultants, NA, Pakistan, 1996.

Directorate of Education, NA. School Mapping Studv. Conducted by Four Valleys EngineeringConsultants, NA, Pakistan, 1996.

Government of NA. Social Action Programme Progress Report 1996-97 Alongwith OperationalPlan 1997-98 and SAPII Strategic Five-Year Rolling Plan 1997-98 to 2001-02. NA, Pakistan,1997.

Directorate of Education, NA. Statistical Compilation of Educational Data of Government andPrivate Sectors in the NA. Project Preparation Working Group, NA, Pakistan, 1995.

Directorate of Education, NA. Improvement of Existing Physical Learning Environment ofElementary Schools in the Northern Areas. Conducted by Four Valleys Consultants, NA,Pakistan, 1995.

Directorate of Education, NA. Working Paper on Quality of Education. Prepared by Prof.Mubarik Hussain Shah and Ijaz Hussain Bukhari, NA, Pakistan, 1995.

Directorate of Education, NA. Northern Areas Education Project Preparation Document. NA,Pakistan, 1996.

II. Government of Azad Jammu and Kashmir (AJK) Documents

Directorate of Public Instruction Elementary Education of AJK (DPIEE-AJK). PC-I NorthernEducation Project. Azad Janmmu and Kashmir. July 1997 to June 2002. AJK, Pakistan, 1997.

DPIEE-AJK. Working Paper on Community participation in AJK - Northern Education Project.Conducted by HALCROW, AJK, Pakistan, 1996.

147 ANNEX 14

Page 2 of 3

Planning and Development Department. AJK. AZAD Kashmir at a Glance. 1993. AJK, Pakistan,1994.

Education Secretariat, AJK. Posting and Transfer Policv - School Education - AJK. AJK,Pakistan, 1996.

Planning and Development Department, AJK. Social Action Prograrmne - Operational Plan 1996-97. AJK, Pakistan, 1996.

Planning and Development Department, AJK. Operational Plan (Draft) 1997-98. AJK, Pakistan,1997.

DPIEE-AJK. Implementation Plan - Northern Education Project - Januarv 1997-December 1998.Prepared by Mott MacDonald Pakistan, AJK, Pakistan, 1997.

DPIEE-AJK. Design. Field Testing and Execution of the First Round of an Annual SchoolMapping Activity. Prepared by Semiotics Consultants, AJK, Pakistan, 1996.

DPIEE-AJK. (1) Rehabilitation and Construction of School Facilities to Improve Access,Retention and Equity: (2) Economic Analysis of the Project: (3) Project Implementation Plan, (4)Project Monitoring and Evaluation: (5) Improving the Qualitv of Education: (6) CommunitvParticipation: and (7) Improving Management Capacitv. Prepared by Mott MacDonald, AJK,Pakistan, 1996.

wII. Mission Papers

Directorate of Education (NA), IDA and Multi-Donor Support Unit. A Review of the NorthernAreas Conununity School Programme. Prepared by Asad Azfar, Christopher Wheeler, and FasiUddin, NA, Pakistan, 1996.

Malmborg, John. Review of Aga Khan Housing Board for Pakistan - Self-Help SchoolConstruction Program, NA, Pakistan, 1995.

Malmborg, John. School Construction Working Paper -Northern Areas. Copenhagen, Denmark,1995.

Malmborg, John. School Construction Working Paper - Azad Jammu and Kashmir. Copenhagen,Denmark, 1995.

Sutton, Margaret. Teacher Training in the Northern Areas and Azad Jammu and Kashmir.Washington D.C., USA, 1996.

Sutton, Margaret. Monitoring and Evaluation Plan. Washington D.C., USA, 1996.

Sutton, Margaret. Educational Assessment in the Northern Areas and Azad Jammu and Kashmir.Washington D.C., USA, 1996.

148 ANNEX 14Page 3 of 3

Bokhari, Ijaz Hussain. Working Paper on Qualitv of Education. Semiotics Consultants,Islamabad, Pakistan. 1995

Shakil, Sofia. The Role of NGOs and Community Participation in Project Implementation. (Draft)NA, Pakistan, 1996.

Shakil, Sofia. The Northern Areas Education Project Preparation Workshop. (Workshop Minutesand Papers), NA, Pakistan, 1995.

IDA Identification Mission. Draft Aide Memoire - Government of Pakistan. Azad Jammu andKashmir - Proposed Northern Education Project and Draft Aide Memoire - Government ofPakistan. Northern Areas - Proposed Northern Education Project. Pakistan, 1995.

IDA Preparation Mission. Aide Memoire - Government of Pakistan. Azad Jammu and Kashmir -Proposed Northern Education Project and Draft Aide Memoire - Government of Pakistan.Northern Areas - Proposed Northern Education Project. Pakistan, 1995.

IDA Appraisal Mission. Aide Memoire - Azad Jammu and Kashmir and Northern Areas -Proposed Northern Education Project; Aide Memoire - Government of Pakistan. Azad Jammu andKashmir - Proposed Northern Education Project and Draft Aide Memoire - Government ofPakistan. Northern Areas - Proposed Northern Education Project. Pakistan, 1996.

Directorate of Education (NA) and DPIEE (AJK). Preliminary Design and TechnicalSpecifications of Colleges of Elementary Education at Gilgit and Skardu (NA) and CRDC/EECBuildin_ and Muzaffarabad (AJK). Prepared by Pervaiz Vendal and Associates, Lahore, Pakistan,1996.

IV. Other

IDA. Summar Technical Assistance Funding Proposal for Japan PHRD Fund. WashingtonD.C., USA, 1994.

Aga Khan Education Services Pakistan. Northern Region Education Planning Exercise. Preparedby EDC, Pakistan, 1994.

Aga Khan Development Network. Northern Education Project Technical Proposal. NA, Pakistan,1996.

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IMAGING

Report No.: 15830 PAKType: SAR