Document of
The World Bank
FOR OFFICIAL USE ONLY
Report No:52843
PROJECT APPRAISAL DOCUMENT
ON A
PROPOSED GRANT
IN THE AMOUNT OF US$ 40 MILLION
TO THE
REPUBLIC OF LIBERIA
FOR A
FAST TRACK INITIATIVE GRANT FOR BASIC EDUCATION PROJECT
September 1, 2010
This document has a restricted distribution and may be used by recipients only in the
performance of their official duties. Its contents may not otherwise be disclosed without
World Bank authorization.
CURRENCY EQUIVALENTS
(Exchange Rate Effective June 30, 2010)
Currency Unit = Dollar
SDR1 = US$1.4789
US$1 = SDR 0.678618
FISCAL YEAR
July 1 – June 30
ABBREVIATIONS AND ACRONYMS
AfDB
ALP
CAS
CDD
CEO
CF
CQS
CSB
CSR
CWIQ
DA
DEF
DEO
DHS
DPO
DSA
ECD
ECSEL
EFA/FTI
EGRA
EMIS
EMT
EPA
EPDF
ESDC
ESDC-EB
ESMF
ESP
EPF
EU
FBS
FM
GAC
African Development Bank
Accelerated Learning Program
Country Assistance Strategy
Community Driven Development
County Education Officer
Catalytic Fund
Consultants’ Qualifications
County School Board
Country Status Report
Core Welfare Indicators Questionnaire
Designated Account
Division of Education Facilities
District Education Officer
Demographic and Health Survey
Development Policy Operation
Debt sustainability analysis
Early childhood development
European Commission Support to Education in Liberia
Education for All/Fast Track Initiative
Early Grade Reading Assessment
Education Management Information System
Executive Management Team
Environmental Protection Agency
Education Program Development Fund
Education Sector Development Committee
Education Sector Development Committee-Executive Board
Environmental and Social Management Framework
Education Sector Plan
Education Pooled Fund
European Union
Fixed Budget Selection
Financial Management
General Auditing Commission
GDP
GEMAP
GER
GIMPA
GIR
GOL
HD
HDI
HIPC
HIV/AIDS
HR
HQ
IAU
ICB
IDA
IFMIS
IFRs
ILO
IPAM
ISA
ISDS
LD
LPERP
LISGIS
M&E
MDGs
MOE
MOF
MOHSW
MOU
NCB
NCHE
NER
NGO
NIR
OSI
PAD
PCN
PEMFAR
PFM
PFMU
PIC
PID
PPCC
PREM
PRSP
PTA
PTR
QCBS
RPF
Gross Domestic Product
Governance and Economic Management Program
Gross Enrollment Rate
Ghana Institute of Management and Public Administration
Gross Intake Rate
Government of Liberia
Human Development
Human Development Index
Heavily Indebted Poor Countries
Human Immunodeficiency Virus/Acquired Immuno Deficiency
Syndrome
Human Resources
Headquarters
Internal Audit Unit
International Competitive Bidding
International Development Association
Integrated Financial Management Information System
Interim Financial Reports
International Labour Organization
Institute of Public Administration and Management
International Standard of Auditing
Integrated Safeguards Data Sheet
Liberian Dollars
Liberia Primary Education Recovery Program
Liberia Institute of Statistics and Geo-Information Services
Monitoring and Evaluation
Millennium Development Goals
Ministry of Education
Ministry of Finance
Ministry of Health and Social Welfare
Memorandum of Understanding
National Competitive Bidding
National Commission for Higher Education
Net Enrollment Rate
Non Governmental Organization
Net Intake Rate
Open Society Institute
Project Appraisal Document
Project Concept Note
Public Expenditure Management and Financial Accountability Review
Public Financial Management
Project Financial Management Unit
Public Information Center
Project Information Document
Public Procurement and Concessions Commission
Poverty Reduction and Economic Management
Poverty Reduction Strategy Paper
Parent Teacher Association
Pupil Teacher Ratio
Quality and Cost Based Selection
Resettlement Policy Framework
RTI
RTTI
SBDs
SES
SIDA
SIL
SMC
SOE
SSS
SST
TA
TOR
TTL
TVET
UN
UNESCO
UNICEF
UNMIL
USAID
WAEC
WB
WFP
Research Triangle Institute
Rural Teacher Training Institute
Standard Bidding Documents
Senior Executive Service
Swedish International Development Cooperation Agency
Sector Investment Loan
School management committee
Statement of Expenditures
Single Source Selection
Sector Support Team
Technical Assistance
Terms of Reference
Task Team Leader
Technical and Vocational Education and Training
United Nations
United Nations Educational, Scientific and Cultural Organization
United Nations Children’s Fund
United Nations Mission in Liberia
United States Agency for International Development
West Africa Examination Council
World Bank
World Food Program
Vice President:
Country Director:
Country Manager
Sector Manager:
Task Team Leader:
Obiageli Ezekwesili
Ishac Diwan
Ohene Nyanin
Christopher Thomas
Nathalie Lahire
LIBERIA
Fast Track Initiative Grant for Basic Education
CONTENTS
Page
I.
STRATEGIC CONTEXT AND RATIONALE ............................................................. 1
A.
Country background and sector issues ........................................................................... 1
B.
Rationale for Catalytic Fund involvement ................................................................... 11
C.
Higher level objectives to which the project contributes ............................................. 13
II. CATALYTIC FUND DESCRIPTION ......................................................................... 13
A.
Grant instrument ........................................................................................................... 13
B.
Program objective and phases ...................................................................................... 13
C.
Project development objective and key indicators ....................................................... 14
D.
Catalytic Fund components .......................................................................................... 15
E.
Lessons learned and reflected in the project design ..................................................... 20
F.
Alternatives considered and reasons for rejection ........................................................ 21
III.
IMPLEMENTATION ................................................................................................ 22
A.
Partnership arrangements ............................................................................................. 22
B.
Institutional and implementation arrangements ........................................................... 22
C.
Monitoring and evaluation of outcomes/results ........................................................... 24
D.
Sustainability ................................................................................................................ 24
E.
Critical risks and mitigation measures proposed .......................................................... 25
F.
Grant conditions and covenants ................................................................................... 29
IV.
APPRAISAL SUMMARY ......................................................................................... 30
A.
Economic and financial analyses ................................................................................. 30
B.
Technical ...................................................................................................................... 31
C.
Fiduciary....................................................................................................................... 31
D.
Social ............................................................................................................................ 33
E.
Environment ................................................................................................................. 34
F.
Safeguard policies ........................................................................................................ 34
G.
Policy Exceptions and Readiness ................................................................................. 34
Annex 1: Country and Sector or Program Background .................................................... 35
Annex 2: Major Related Projects Financed by the Bank and/or Agencies ....................... 51
Annex 3: Results Framework and Monitoring .................................................................... 52
Annex 4: Detailed Project Description ................................................................................. 60
Annex 5: Project costs and proposed financing................................................................... 68
Annex 6: Institutional Arrangements ................................................................................... 69
Annex 7: Financial management and disbursement arrangements .................................. 76
Annex 8: Procurement Arrangements ................................................................................. 90
Annex 9: Economic and Financial Analysis ....................................................................... 101
Annex 10: Safeguard policy issues ...................................................................................... 115
Annex 11: Project Preparation and Supervision ............................................................... 118
Annex 12: Sector Policy Letter............................................................................................ 120
Annex 13: Documents in the Project File ........................................................................... 132
Annex 14: Statement of Loans and Credits ....................................................................... 133
IBRD Map No. 33435R2
LIBERIA
FAST TRACK INITIATIVE GRANT FOR BASIC EDUCATION
PROJECT APPRAISAL DOCUMENT
AFRICA
AFTED
Date: September 1, 2010
Country Director: Ishac Diwan
Sector Manager/Acting Director: Christopher
J. Thomas/Tawhid Nawaz
Team Leader: Nathalie Lahire
Sectors: Primary education (40%);Secondary
education (40%);Public administrationEducation (10%);Pre-primary education (10%)
Themes: Education for all (80%);Gender
(10%);Decentralization (10%)
Project ID: P117662
Environmental category: Partial Assessment
Lending Instrument: Specific Investment Loan Joint IFC:
Joint Level:
Project Financing Data
[ ] Loan [ ] Credit [X] Grant [ ] Guarantee [ ] Other:
For Grants:
Total Operation Cost (US$m.): 40.00
Financing Plan (US$m)
Source
Local
Borrower
0.00
Education for All - Fast Track Initiative
15.00
Total:
15.00
Foreign
0.00
25.00
25.00
Total
0.00
40.00
40.00
Amount of financing to be provided by
Source
Trust Fund Program
SPF
Borrower/Recipient
External Funds, not Bank Managed
Financing Gap
Total Project Cost
Amount (US$m)
40.00
0.00
0.00
0.00
0.00
40.00
Borrower:
Republic of Liberia
Liberia
Responsible Agency:
Ministry of Education
Liberia
i
Estimated disbursements (Bank FY/US$m)
FY
11
12
13
Annual
8.00
18.00
14.00
Cumulative
8.00
26.00
40.00
Project implementation period: Start: September 3, 2010 End: June 30, 2013
Expected effectiveness date: December 3, 2010
Expected closing date: June 30, 2013
Does the project depart from the CAS in content or other significant respects?
[ ]Yes [X] No
Ref. PAD I.B.
Does the project require any exceptions from Bank policies?
[ ]Yes [X] No
Ref. PAD IV.G.
Have these been approved by Bank management?
[ ]Yes [ ] No
Is approval for any policy exception sought from the Board?
[ ]Yes [X] No
Does the project include any critical risks rated “substantial” or “high”?
[X]Yes [ ] No
Ref. PAD III.E.
Does the project meet the Regional criteria for readiness for implementation?
[X]Yes [ ] No
Ref. PAD IV.G.
Project development objective Ref. PAD II.C., Technical Annex 3
The CF’s development objective is increase access to basic education, with a particular focus on
poor areas, to improve conditions of teaching and learning, and to improve school management
and accountability.
Project description [one-sentence summary of each component] Ref. PAD II.D., Technical
Annex 4
Component 1: Increasing access and equity in rural areas (US$15.5 million). This component
will support the construction of classrooms, taking into consideration the special circumstances
of remote and hard-to-reach areas, by using two different approaches. The first approach will be
a delegated management approach whereby a competent firm will be hired for the management
and supervision of the construction program (24 primary schools and 20 junior high schools),
while the second approach will be a community driven development (CDD) approach for the
construction of about 16 primary schools in hard-to-reach areas where it is difficult to find
contractors.
Component 2: Improving the quality of teaching and learning (US$14 million). This component
would include: (a) provision of learning materials to both students and teachers; (b) provision of
grants to schools after a rigorous strengthening of the existing system, (c) support for ECD
models with a focus on community-based ECD provision in rural areas and systems
development; and (d) school health, including de-worming of children in eight counties.
Component 3: Strengthening management capacities and developing a framework for
institutional capacity building with a focus on monitoring and evaluation (US$10.5 million).
Under this component, the CF support will strengthen the MOE structures at central and school
levels. Activities under this component will include (a) the establishment of a Project Support
Team (PST) to assist with the day-to-day management of the CF project; the PST will include a
project coordinator and financial management and procurement specialists; (b) capacity building
ii
for the Departments of Planning, Administration, and Instruction; (c) training of DEOs and
school directors for monitoring and tracking school level data in close collaboration with EUfunded project, as well as training of DEOs and teachers on the use of learning assessment
instruments; (d) TA for the design of a national assessment instrument; and (e) TA to strengthen
personnel and payroll management.
Which safeguard policies are triggered, if any? Ref. PAD IV.F., Technical Annex 10
The CF has triggered OP 4.01 Environmental Assessment and OP 4.12 Involuntary Resettlement
due to potential negative environmental and social impacts related to the construction of schools.
Significant, non-standard conditions, if any, for:
Ref. PAD III.F.
Board presentation:
NONE
Grant effectiveness:
(a) The execution and delivery of the Grant Agreement on behalf of the Recipient have been
duly authorized or ratified by all necessary governmental action;
(b) The MOU has been entered into between the MOF and the MOE laying out their working
relationship and the respective responsibilities in accordance with Section I.B.2 of
Schedule 2 to the Grant Agreement;
(c) The PIM has been adopted by the Recipient satisfactory to the World Bank; and
(d) A Project coordinator and two procurement specialists have been recruited to the PST
pursuant to terms of reference and qualifications acceptable to the World Bank and in
accordance with Section III of Schedule 2 to the Grant Agreement.
Covenants applicable to project implementation:
(a) No later than six months after the Effective Date, the Recipient shall recruit and employ
an external auditor for the Project, with terms of reference and qualification satisfactory
to the World Bank, in accordance with the provisions of Section III of Schedule 2 of the
Grant Agreement to perform the audits required under Section II.B of Schedule 2 to the
Grant Agreement.
(b) No later than two months after the Effective Date, the Recipient shall recruit and employ
two financial management specialists for the PST with qualifications satisfactory to the
World Bank.
(c) No later than twelve months after the Effective Date, the Recipient shall develop
templates in form satisfactory to the World Bank for the capture of expenditure
information from the Selected Primary and Junior Secondary Schools.
Other conditions:
No withdrawal shall be made under Category (2) for School Subgrants for Part 2.b.2 of the
Project, until the following conditions are met, in a manner satisfactory to the World Bank: (i)
iii
development by the MOE with technical assistance financed under the Project of the School
Subgrant Guidelines; (ii) verification that at least 400 of the Selected Primary and Junior
Secondary Schools have met the eligibility criteria to receive Subgrants.
Retroactive financing:
Withdrawals up to an aggregate amount not to exceed US$400,000 may be made for payments
made on or after July 21, 2010 to cover eligible expenditures relating to the recruitment of
contractual staff.
iv
I.
STRATEGIC CONTEXT AND RATIONALE
A. Country background and sector issues
1.
Liberia is a poor post-conflict country of 38,350 square miles located in West Africa. It is
the oldest independent state in sub-Saharan Africa. According to the 2008 population census,
Liberia has a population of approximately 3,476,608 million people, 53 percent of whom are
below 20 years of age. The United Nations (UN) Population Division reports that Liberia has
one of the fastest growing populations in the world. For the period 1995 to 2025, the UN
estimates project an annual population growth rate of 3.8 percent. Seventy-five percent of the
population is living on less than US$1 a day and almost 90 percent of the population is
considered to be food insecure (Poverty Reduction Strategy, 2008). The average life expectancy
is 45.3 years. The human development situation in Liberia is improving, although, in terms of
Human Development Index (HDI), it is still ranked below the average of other sub-Saharan
African countries.
2.
Liberia has a significant advantage in natural resource-based products. The country
enjoys an abundance of rainfall, a long coastline and ample land for its small population. The
country’s forests are the most extensive remaining in West Africa. Timber was the most
important valuable export after iron ore before the conflict and is expected to return to
prominence in 2011, now that a satisfactory regulatory framework has been put in place.
Agricultural activities account for the largest share of Liberia’s gross domestic product (GDP) –
about 42 percent. Food crops include rice and cassava. Fishing stocks are largely intact and
increasingly protected. Liberia is the second largest exporter of rubber in sub-Saharan Africa and
has the largest rubber plantation in the world. Mineral resources include iron ore – with exports
expected to return to their pre-conflict prominence in 2011 – as well as gold, diamonds and other
as yet unexploited minerals. Outside of agriculture, the service sector contributes most to the
economy. Manufacturing is relatively small, accounting for about 12 percent of GDP.
3.
Liberia has made substantial political, economic and social progress since the end of the
14-year-long civil war in 2003. As a result of the conflict, the provision of basic services came
to a halt due to the large-scale destruction of infrastructure, halt in provision of basic supplies,
and flight of the human capital serving these sectors. Two rounds of free and fair elections in
2005 led to the installation of a new government in January 2006. Since the security situation has
steadily improved, large international mining companies are returning, infrastructure is being
rebuilt, public services are being restored, many skilled and educated members from the
Diaspora are returning, and enrollment in all levels of education is increasing rapidly.
4.
The economy has posted a strong recovery and the authorities have made significant
progress with macroeconomic stabilization and fiscal management reforms. The post-war
recovery continued in 2008 and, despite a difficult international environment, economic
performance remained broadly satisfactory and macroeconomic stability was maintained. The
GDP growth rate has been at an average of seven percent over the last five years. This economic
growth has been spurred by agriculture (mainly rubber), retail trade, communications, transport
and the construction sub-sectors.
5.
Based on the International Labour Organization (ILO) standard which includes selfemployed workers, Liberia’s unemployment rate is estimated at 5.7 percent of the labor force—
contrary to the unsubstantiated 75 and 80 percent that have been quoted, which are most likely
based on a strict interpretation of formal employment that does not include the self-employed.
Labor participation rates are lower for youth and women than for men and are generally higher in
the rural areas where more people are involved in subsistence farming.
6.
However, the progress gained so far is still precarious. Liberia was significantly affected
by the increase in world food and fuel prices in the first half of 2008, a reflection of the fact that
the country imports the majority of its food, especially rice. Year-on-year inflation peaked at
almost 27 percent in August 2008, and is estimated at 17.5 percent for the year. To mitigate
against this price increase, the World Bank has provided support to Liberia through the
Emergency Food Crisis Response Program. The government’s macroeconomic framework
projects GDP growth to average 7.5 percent per annum for the 2009-2011 period, down from the
average of 14.3 percent per annum projected prior to the global economic slowdown.
7.
From the response to the labor questions in the Demographic and Health Survey (DHS)
conducted in 2007, it appears that 33 percent of the population had no education, 31.8 percent
had primary education, 31.2 percent secondary education and 4.1 percent had higher education.
As the table below shows, people with no education or incomplete primary education are overproportionately employed in the agriculture sector. For those who have completed primary
school, agriculture is less likely to be a source of income, while the importance of the formal
non-agriculture sector grows, albeit very slightly due to the small formal sector presently
existent. For those with higher educational attainment, the likelihood of obtaining work in the
professional, technical, or managerial sector increases.
Table 1: Percentage Distribution of Main Occupation by Educational Attainment
No
In com p l ete Co m p l e te Inco m p l e te Co m p le te
ed u ca ti on
p ri m a ry
p ri m a r y
s e co n d ary s e con d a ry
Higher
To ta l
Un e m pl o ye d
5.5
3 4 .0
8.1
3 9 .7
8 .5
4 .2
10 0 .0
Pro f., Tech ., Ma n ag e ri a l
3.6
1 .3
1.0
1 3 .7
4 3 .4
3 7 .0
10 0 .0
Cl e ri ca l
0.0
1 .5
2.0
1 3 .0
5 4 .6
2 8 .9
10 0 .0
Sa l es
2 9.3
2 2 .5
7.4
2 5 .0
1 2 .1
3 .8
10 0 .0
Ag ric-s el f em p l oye d
4 7.3
3 0 .2
5.1
1 4 .8
2 .4
0 .3
10 0 .0
Ag ric-e m p l o ye e
4 1.7
3 3 .5
5.6
1 6 .8
2 .3
0 .2
10 0 .0
Ho u s eh o l d & d om e s tic
2 2.4
3 7 .8
0.5
2 6 .4
8 .5
4 .4
10 0 .0
Se rvi ce s
1 8.4
1 4 .7
4.6
2 5 .8
2 9 .8
6 .8
10 0 .0
Skil l e d m a nu a l
2 6.2
1 7 .9
6.3
3 4 .2
1 2 .3
3 .1
10 0 .0
Un s ki l l ed m an u a l
1 2.7
3 1 .9
1 0.2
3 6 .4
6 .3
2 .5
10 0 .0
Oth e r
2.0
1 0 .8
0.5
2 7 .6
3 9 .8
1 9 .4
10 0 .0
Total
3 3.0
2 6 .0
5.8
2 1 .6
9 .6
4 .1
10 0 .0
Source: Authors’ calculations using the Liberia DHS, 2007
8.
The agricultural sector is the largest employer, engaging almost 50 percent of the
working population, followed by the services sector, including retail and wholesale trade.
Industry provides few jobs. The low level of educational attainment in the country reduces
productivity and limits earnings potential. The economy will need to grow at a fast rate to absorb
the backlog of unemployed and new entrants. Ensuring attainment of a quality basic education,
backstopped by functional literacy and numeracy for adults and those out of school, are high
priorities in order to ensure a platform for “trainability” in an evolving economy.
9.
The education sector was negatively affected by the turmoil of the last decades but is
slowly recovering. Since 2007, the following progress has been made through the
implementation of the Liberia Primary Education Recovery Program (LPERP) which was meant
to move the primary sector from emergency status to recovery status. Overall, 198 schools were
built and 58 renovated and 75,820 students enrolled in the Accelerated Learning Program (ALP)
(a program for children above the official primary school age that compresses the primary
education program into three years rather than the standard six-year program). The ALP is
operational in all 15 counties. Also, 82,638 students were provided with furniture and 1.2 million
textbooks were procured and are being distributed to the schools in the 2009/2010 school year.
This distribution will bring the student textbook ratio to 2:1. Lastly, 324 in-service teachers
received their “C” certificates for teaching at the primary school level and 400 trainees in the
pre-service program successfully passed their final examination.
10.
With World Bank and Research Triangle (RTI)/USAID support, the government has
assessed reading levels in grades 2-3 in 180 schools. A school census report that includes
detailed information about all of the schools in Liberia for school year 2007/08 has been
completed; the school census represents the main data reference for the education sector. An
Education Management Information System (EMIS) exists and incorporates the data from the
three rounds of school censuses (2005-2008). The data from 2009 is currently being entered and
cleaned. With UNICEF support, the Ministry of Education (MOE) is engaging in a school
mapping exercise which is central to the planning of educational provision at the local level. This
dimension of educational planning can contribute to reducing inequities in the provision of
education services between different regions and localities within Liberia.
11.
Over the past two years, the MOE has been preparing a ten-year Education Sector Plan
(ESP) based on an exhaustive Country Status Report (CSR) and consultation process that
included all education stakeholders. The extensive consultative process has allowed for the
building of a consensus around the main sector issues and strategies between the government and
donor partners. The ESP expands and builds upon the Poverty Reduction Strategy Paper (PRSP)
and LPERP. The sector plan outlines the short-, medium-, and long-term government strategies
for addressing the challenges facing the education sector and is accompanied by a three-year
implementation plan.
12.
During the last two years, the Education Program Development Fund (EPDF),
administered by the World Bank, has been supporting the education sector in Liberia by
providing technical assistance for capacity building in the MOE. The table below outlines the
support provided.
Table 2: Support Provided under Education Program Development Fund
Teacher assessment report completed based on school census data from 06/07 and updated based
on 07/08 data.
Early Grade Reading Assessment (EGRA):
 EGRA training received;
 Development of assessment tools;
 EGRA pilot tested in 45 schools; and
 Workshop held in Liberia to design teacher training intervention as part of the ongoing
impact evaluation of teacher training and EGRA.
Education Public Expenditure Review completed.
Technical Assistance for infrastructure expansion strategy:
 List of 40 schools identified for construction under the pooled fund;
 Primary school design reviewed and revised;
 Support to the Ministry of Education Division of Educational Facilities;
 Questionnaire instrument to survey schools selected for next year’s program; and
 Short-term strategy completed.
Assistance with Procurement: Procurement assistant recruited to assist with day-to-day LPERP
implementation including development of a procurement plan for the pooled fund and follow-up
on its implementation.
Assistance with Financial Management: Two national assistant project accountants recruited to
assist with day-to-day business of LPERP program including pooled fund.
Donor coordinator recruited to assist with education development partners meetings and
coordinate donor support (position closed under EPDF in 2008 and position is now being
supported by UNICEF for 2009/10).
Focal persons for two departments for FY09 and FY10 to assist with day-to-day management of
program implementation;
(Planning): L-PERP coordinator;
(Instruction): Resource person for the Deputy Minister for Instruction on all LPERP
related issues;
World Bank Institute (WBI) e-learning course on economics of education for four MOE staff.
Participation in WBI course on post-basic education; action plan for post-basic education
developed.
Support for extensive regional consultations of the Education Sector Plan.
Assistance with Early Childhood Development (ECD): One regional early childhood specialist
provided support to the MOE on the early childhood and pre-primary chapter of the ESP and
guidance in the development of a national ECD policy.
13.
As noted above, a CSR and an ESP have both been prepared with the former providing
the necessary detailed diagnostic of the education sector and the latter laying out fully costed
policy directions. A Public Expenditure Management and Financial Accountability Review
(PEMFAR) was completed in 2008 and includes a chapter dedicated to the review of public
expenditures on education. A series of concrete recommendations, listed in the table below, were
laid out for the education sector, including a gradual increase in the share of education
expenditures.
Table 3: PEMFAR Recommended Actions for the Education Sector
Education
Education expenditure
constituted 13.6 percent
of total expenditure in
2007/08.
Proportion of
expenditure on primary
and secondary education
is low.
Donor financing
constitutes 49 percent of
total education
expenditure, and is
primarily executed in
parallel to the
government.
Large inequalities in
teacher distribution—for
example, the pupilteacher ratio is 30 in
Montserrado, and 105 in
Lofa county.
School management
often lacks the small
cash resources required
to ensure smooth
operations.
Enrollment in private or
faith-based schools is
high. Educational access
could be expanded
through improved
public-private
partnerships and cost
recovery systems.
Many vocational training
programs do not target
the demands from the
labor market.
Actions
Key entity
responsible
Gradually increase education expenditure as a
proportion of total expenditure, toward Education
for All Fast Track Initiative Benchmark.
Government of
Liberia
Increase proportion of education budget dedicated
to primary and secondary education.
Ministry of
Education (MOE)
Develop a monitoring system to track donor
expenditure within the education sector and
monitor activities.
MOE
Design and provide an incentive package for
teachers in remote rural areas.
MOE
Pilot a system of direct transfers to schools to
support operations and maintenance costs.
MOE
Develop a policy to govern public-private
partnerships within the education sector.
MOE
Strengthen the quality and relevance of vocational
training programs through better alignment with
labor-market demands.
MOE
14.
The proposed Catalytic Fund (CF) grant addresses several of these recommended actions
as will be detailed below. In addition, knowledge and lessons are being drawn from the
implementation of ongoing World Bank projects. For example, the current Community
Empowerment Project (US$5 million) supports the rebuilding of community cohesion and social
capital in addition to much-needed community infrastructure (including building/rehabilitation of
classrooms). From this project, we have learned lessons about enlisting community support for
school construction. Also, The Food Price Crisis Response Trust Fund (US$4 million) includes
the funding of school meals for 62,000 pre-school and primary school children from vulnerable
households in three targeted districts. This project contributed to an improved design and
management of school feeding projects.
Main sector issues
15.
With the majority of its population under twenty years of age and large-scale youth
unemployment, the government has been giving increased attention to education and training,
especially now that the focus has shifted from an emergency state to one of reconstruction.
During the emergency phase, the emphasis was on providing shorter-term education programs in
order to sustain the system until the conflict ended and reconstruction efforts could begin. Now
that these reconstruction efforts have begun, the government has to try and shift to a longer-term
approach characterized by the need to formulate long-term, strategic sector plans that have at
their core the reconstitution of entire systems to provide basic services while at the same time
trying to roll out the services that these systems were meant to provide. Thus the core issue of
the education sector in Liberia is to undertake institutional reform of the sector while at the same
time providing a reasonable quality of education to its citizens. As noted above, the ESP outlines
the main policies and strategies for addressing this core issue.
16.
The following table shows basic indicators for the pre-primary and primary levels for the
year 2007-2008:
Table 4: Selected Baseline Statistics
Level and Parameters
Pre-Primary
Gross Enrollment Ratio (GER)
% of pupils Government of Liberia (GOL) and Community Schools
Number of pupils enrolled in GOL and Community Schools
Number of pupils enrolled in other institutions
Subsidy for others as % of GOL unit cost
Total recurrent spending on preschool (in millions of LDs)
Primary
Grade 1 Gross Intake Rate (GIR)
Grade 1 Gross Intake Rate (GIR) – Boys
Grade 1 Gross Intake Rate (GIR) – Girls
Grade 6 (Proxy Completion rate)
Grade 6 (Proxy Completion rate) – Boys
Grade 6 (Proxy Completion rate) – Girls
Share of repeaters
Base Year - 2007/08
141%
76%
374,946
116,618
2%
311
113%
117%
109%
62%
67%
57%
7%
Total enrolment
Total enrollment – Boys
Total enrollment – Girls
Girls’ Enrolled/Boys’ Enrolled as a percentage
Gross Enrollment Ratio (GER)
Net Enrollment Rate (NER)
% of pupils in private and mission schools
Enrollment in private and mission institutions
Pupil teacher ratio (public and community + ALP)
Total number of primary teachers
Average Teacher remuneration as multiple of GDP per capita
Spending on inputs other than teachers as % of total recurrent spending
Total recurrent spending (millions of LDs)
Junior Secondary
Gross Enrollment Ratio (GER)
% of pupils Government of Liberia (GOL) and Community Schools
Number of pupils enrolled in GOL and Community Schools
Number of pupils enrolled in other institutions
Grade 9 – Proxy Completion Rate
Total recurrent spending on preschool (in millions of LDs)
539,887
286,584
253,303
88%
94%
35%
30%
161,132
48.7
9,338
2.2
54%
414
42%
47%
48,335
54,307
35%
122
17.
On the whole, Liberia faces similar problems to those sub-Saharan African countries that
have utilized a ‘big bang’ approach to abolishing primary school fees. The government has
demonstrated its commitment to increasing access and providing ‘basic education’ for all its
citizens by abolishing school fees in public primary schools. Additionally, many damaged and
destroyed educational institutions have been rebuilt and are operating again. Together with the
government-led school feeding program, these actions have significantly improved enrollment,
attendance and retention, especially for girls and children of the poor and disadvantaged (PRSP,
2008, pp.7, 102-103). However, the increased enrollment has not been accompanied by any
substantial increase in resource flows, thus creating increased pressure on an education system
already facing enormous challenges. These challenges are detailed below.
There is a shortage of qualified and trained teachers
18.
Recent EMIS data indicate that only one-third of primary school teachers and about 60%
of junior secondary school teachers in public schools have been trained. A further 9 percent of
primary school teachers have received some training as part of the ALP. This leaves over 55
percent of primary school teachers and two-fifths of junior secondary teachers in public schools
without formal teacher training. The figures are slightly better in mission and private schools.
The majority of primary school teachers have completed their high school education, but a
significant 7.6 percent have not even reached the end of high school. There are large numbers of
volunteer teachers who were mainly taken on by local communities during the conflict period in
order to keep the education system functional when many teachers fled. These volunteers are
normally supported by the community, either in cash or with in-kind payments. In some
counties, the County Education Officers (CEOs) or District Education Officers (DEOs) are
involved in the selection of these volunteer teachers. Human Resources (HR) data on volunteer
teachers in 2007 recorded 2,028 volunteer teachers, of whom, over 70 percent are unqualified.
However, 24 percent of the volunteer teachers have either a C or B certificate necessary for
teaching at primary and secondary school levels respectively.
19.
From 2006-2010, teacher training has been mainly supported by the Liberia Teacher
Training Program funded by USAID. The program strengthens the government’s ability to
deliver education services by, amongst other activities, supporting the MOE to develop a strategy
to improve the teacher education system and training primary school teachers through preservice and in-service training in six of the fifteen counties. A second phase of the program,
which will extend and expand the existing teacher training activities, has already been designed
and is planned to begin in 2010. While USAID will continue to provide pre-service and inservice teacher training in six counties, the European Union will also begin in-service teacher
training in the six counties where USAID is not working. Therefore, starting in 2010, in-service
teacher training will take place in all counties.
Poor payroll management, teacher management and deployment
20.
Teacher and personnel management, including cleaning of the payroll, are big challenges
for the education system. As per the latest payroll information from January 2008, Liberia’s civil
service employed about 35,000 persons or approximately 1 percent of the population. Of this
number, about 13,000 civil servants are employed in the MOE as compared to 2,596 in the
Ministry of Health & Social Welfare (MOHSW). The education and health sectors face many
similar problems, in fact, these problems can be found throughout the civil service. Two major
challenges are to eliminate the large number of “ghost workers” and to strengthen the technical
capacity of the civil service, challenges that are being addressed via numerous civil service
reforms. Achievements to date with regard to civil service reform relate to clearing some salary
arrears to public servants and implementing three modest increases in basic pay (though salaries
remain very low and highly compressed). A number of ghost workers have been eliminated from
the civil service payroll, which is now down from 42,000 to 35,000.
21.
Another major constraint is the weak capacity at all levels of the civil service, but
particularly at the middle management level. The Senior Executive Service (SES) is a program
initiated to attract a high caliber of qualified Liberians from in the Diaspora back to the country
to serve in the public sector. The individuals selected for the SES were given special benefits and
better remuneration to give them the necessary incentives to assist government in implementing
difficult reform measures. The results so far have been mixed and varied in the different
ministries.
22.
The education sector, like other government sectors, also faces the significant problem of
managing deployment to its facilities throughout the country. Teacher allocation among schools,
as expressed by the relationship between teacher numbers and student enrollment, shows that
there is no direct correlation between the numbers. The government continues to face challenges
in getting teachers to move out to and remain in rural areas where fewer amenities exist. Similar
problems exist with regard to health sector personnel and this problem cannot therefore be
looked at in isolation, especially considering the fact that civil service reforms, once
implemented, will cut across the board.
Low education quality including serious problems in early grade reading levels
23.
For every 100 children starting primary school in grade 1, only 60 make it to grade 6 and
repetition rates at all grades are above five percent. The student flow efficiency value1 for Liberia
was just 35 percent in 2007. Even though these numbers are improvements on earlier years, they
suggest that the system is inefficient and wasteful of scarce resources. Further, even if access
could be provided for all primary school age children, if many of them fail to complete Grade 6,
universal primary completion would not be achieved by 2015. Early grade reading results from
the Early Grade Reading Assessment (EGRA) show that the average score is rather low: 16.7/50
for all the students, 13.7/50 at Grade 2 and 20.0/50 at grade 3.
24.
In Liberia, a standardized measure for learning achievement, other than the grade 6
examination of the West African Examination Council (WAEC), does not exist. The WAEC
exam is used as a way of filtering out those students who cannot continue to secondary education
because of the lack of available places and it cannot be described as a reliable and valid measure
of student achievement. The EGRA has been piloted in the early grades but there is a need to
develop a localized criterion-referenced assessment which would assess both math and reading
proficiency.
Liberia’s current primary education system is characterized by a large above the primary school
age student population.
25.
After the long civil war, gross enrollment rates (GER) increased at all levels up to senior
high. The GER values are particularly high for the pre-primary and primary levels. The two main
reasons for the high values are the increasing demand for education and the fact that many who
may have started school at the ‘official’ age have had to resume again after a long absence or
start school at an advanced age because of the conflict.
26.
The problem of older students is compounded by the fact that new entrants into the first
grade are tested and if they do not pass must remain out of school until they can pass the
assessment test. The government strategy is to abolish these entrance examinations both in
policy and in practice. The increase of new entrants into primary school that will result from this
abolishment will put an additional burden on the primary school system for the short-to-mediumterm. However, the transition of older children into the primary school classes will also provide
an opportunity to improve the quality of pedagogy for pre-school aged children in the preprimary classes as class sizes will be reduced and there will no longer be great disparities in age
between classmates.
27.
The ALP was specifically designed for older students. It is currently offered in all
counties and supported by a number of different partners. However, it is intended as a temporary
program, offering the primary school curriculum in a three-year period to older students. In the
1
SFE: Primary Completion Rate – Access Rate to first grade of Junior High) + (Junior High Completion Rate– Access rate to
first grade of Senior High)
coming years, this program will complement other non-formal education programs that will
focus more on vocational training and skills development.
Schooling disparity issues are impeding equitable access to education
28.
Similar to much of the infrastructure throughout the country, education infrastructure was
negatively impacted by the civil conflict—31 percent of public and 24 percent of community
schools (community schools are schools constructed by communities and which are supposed to
be eventually absorbed into the government school system) were destroyed and 16 percent of
public and community schools were extensively damaged. Although the LPERP has addressed
some of the infrastructure needs at the primary level, the need is still significant. Therefore,
many parts of the country, especially rural areas, lack a school building or have a school building
that is not fit for the purpose.
29.
Access to educational opportunities, survival, completion and transition to next level are
all influenced by gender, wealth of parents, and geographical location of the individual. Gender
disparities exist and increase with the level of education. As the 2007 DHS for Liberia notes, “56
percent of females and 39 percent of males have never attended any school.” According to the
2007 Core Welfare Indicators Questionnaire (CWIQ), 60 percent of 6-11 year old boys are out of
school compared to 63 percent of girls of the same age. Disparities due to wealth of parents and
geographical location (urban versus rural) are even more prevalent and impact negatively on an
individual child’s ability to access educational opportunities.
30.
The completion rates are low for every level of schooling and for both sexes. With fewer
students attaining successive levels, the completion rates become smaller with movement up the
schooling ladder. The very large difference between the completion rate for the primary level
and that for the junior high school level is an indication of a systemic problem that requires
attention. Achievement of the EFA and Millennium Development Goals (MDGs) of 100 percent
primary completion by 2015 will be a big, if not impossible, challenge, even though the present
primary completion rate of 62 percent is much higher than the estimate of 21 percent in 2000.
Household contributions are substantial
31.
Despite the fact that the government has nominally declared primary education free,
households still spend significant amounts of resources on education relative to their earnings. In
fact, private household expenditure on primary and secondary education is much greater than
government expenditure. Even with ‘free’ primary education, many parents still have to pay for
uniforms, textbooks, copy books/stationary, etc. And for those parents who can afford it, their
preference is to send their children to private institutions where the quality of education received
is perceived to be much higher. For example, the 2007 CWIQ total private expenditure was
estimated at US$27 million while the total public expenditure was US$12.2 million in 2007.
32. The increase in enrollment in public schools has not been matched either by a significant
increase in the number of classrooms or an increase in classroom size. This has increased the
degree of over-crowding in public primary schools while nearby private and mission schools
have spaces available which are not utilized. In order to make up for the loss of tuition income to
schools, the government instituted a direct school grant program that would allow for schools to
receive cash to cover some of their costs. The government has had some difficulty however in
the past two years in ensuring that the allocated money (a) reaches the schools and (b) if the
money does reach the school, that it does so in a timely manner. As a result of these difficulties,
schools are often forced to turn to the parents for funds to keep the schools operational, including
teachers’ salaries. In addition, the government did not establish any clear guidelines on how the
school grant should be spent thus making it difficult to hold school authorities responsible for the
grant.
33.
At the secondary level, students in public junior high schools pay approximately US$8.50
per year excluding examination and transcript fees which total less than US$2, while students at
the senior high school level pay approximately US$11 per year, excluding examination,
transcript and computer class fees which total approximately US$3. Private and faith-based
secondary schools typically charge much higher fees, with many in the $120-$150 per year
range, which is quite a substantial amount in a country where the GDP per capita, in purchasing
power parity terms, is about US$150.
Lack of capacity in monitoring and supervision
34.
As in most other sectors, management and control of the education sector is highly
centralized. Although decentralized in theory, in practice, there is not a clear understanding of
the roles and responsibilities of the CEOs and DEOs on the part of the ministry or the officers
themselves. The CEOs and DEOs carry out very little supervision of and reporting on school
performance due to a lack of resources, experience in providing pedagogical support, and
direction from the center in what their roles and responsibilities are in both supervision and
reporting. In turn, ministry officials at the center also pay scant attention to providing supervision
in the field due mainly to a lack of resources.
35.
Significant assistance (i.e. training, provision of computers, as well as a long-term
technical assistance (TA) has been provided by other partners (UNICEF, USAID, UNESCO, and
European Union (EU)) to improve the EMIS and to ensure the provision of timely and good
quality data. At present, however, the data are not being used for monitoring and evaluation
purposes at county or even school levels due to a lack of understanding of the uses to which
these data can be put and to a lack of capacity within the ministry.
B. Rationale for Catalytic Fund involvement
36.
There are several reasons why the Education for All Fast Track Initiative (EFA FTI) CF
should support the education sector in Liberia. These are detailed below.
37.
Institutional knowledge. Even without considering the large-scale damage to school
infrastructure, human resource depletion and a generation of children who have had little access
to education which have all resulted from the civil conflict, Liberia also faces similar challenges
to those faced by the education sectors in most other Sub-Saharan African countries. The most
significant being: increased pressure on primary institutions created by both an extremely young
population and the abolition of school fees. The challenges faced by the education sector are
therefore monumental and, given the limited number of donors currently active in the sector,
there are serious concerns about the ability of the sector to contribute to post-conflict
reconstruction. Because of its significant institutional knowledge about rebuilding education
systems in post-conflict countries, the World Bank, in its role as supervising entity, would be
able to provide the global experience and examples of best practice that are necessary to learn
from if Liberia is to use its limited resources efficiently and effectively.
38.
Support provided over the past two years through the EPDF has borne fruit. The EPDF
trust fund resources have allowed the MOE to develop a strategic overview of the sector and an
ability to identify the gaps where action is necessary in order to catalyze the sector including
areas where donors have not been forthcoming to address these gaps. Over the past few years,
the MOE has been preparing a ten-year ESP based on an exhaustive CSR and nation-wide
consultation process that included all education stakeholders. The extensive consultative process
has allowed for the building of a consensus around the main sector issues and strategies between
the government and donor partners. The ESP expands and builds upon the PRSP and LPERP.
The sector plan outlines the short-, medium-, and long-term government strategies for addressing
the challenges facing the education sector and is accompanied by a three-year implementation
plan.
39.
Donor orphan status. Liberia attempted an application to the Catalytic Fund Committee
in May 2007. It was welcomed into the EFA FTI partnership but did not qualify for the CF since
it did not have a sector wide plan or a full PRSP. The government was however able to secure a
limited amount of funds to cover some of the immediate funding gaps not met by the EFA FTI
CF: US$12 million from UNICEF, through a grant from the government of the Netherlands,
which was pooled with US$4.25 million from the Soros Foundations/OSI Network. However,
due to the limited amount of funds available only for primary education, the whole education
sector could not undertake at that time the larger-scale reforms that were necessary to truly
catalyze the sector.
40.
The key donors/partners active in the sector include: EU, UNESCO, UNICEF (current
coordination agency), USAID, World Bank, WFP, and Soros Foundation/OSI. Despite the
number of donors highlighted above, Liberia can be considered a ‘donor orphan’. Over the past
year the overall donor spending for the sector was about US$35 million (US$12 million under
USAID for teacher training, EGRA, girls’ scholarships, and short- and long-term training
programs to improve management and technical skills of mid-level professionals; US$10 million
for school feeding under WFP; and about US$12 million under the pooled fund).
41.
With total program costs of US$225.6 million for basic education, government
commitment of US$96 million and donor commitment of US$80 million, the remaining
financing gap would be around US$50 million. The EFA FTI CF request in the amount of
US$40 million would cover parts of that gap. New donors (SIDA, bilateral donors) are currently
discussing new commitments to the sector with the government, which would likely cover the
remaining US$10 million.
42.
The EFA FTI CF would provide support to basic education that would enable the
government to fill gaps where other donors are not able to respond and enable the government to
begin some of the reforms laid out in the ESP to begin to revitalize the education sector. Once
these reforms are catalyzed and a greater degree of accountability is introduced into the sector, it
is hoped that more donors would respond to the country’s needs during this period of
reconstruction.
43.
Government commitment to education sector. Over the past two years, the MOE has
demonstrated that it has absorption and implementation capacity, although significant challenges
remain. In June 2009, the government made a formal request to the donors to support its ten-year
ESP and intent to re-apply to the EFA FTI CF. Since its first application, the government has
developed an ESP which has been presented to the Liberian people for their input and
endorsement during extensive regional and national consultations throughout November 2009.
This shows clearly that the government is serious about building ownership of the plan starting
from the grassroots levels. In October 2009, the Bank was formally selected as the supervising
entity of the CF.
44.
The government’s key policies, priorities, target indicators and financing requirements to
be met over a period of ten years are laid out in an Education Sector Policy Letter (Annex 12).
The letter has been signed and endorsed by both the Ministers of Finance and Education. The
Government of Liberia is committed to increasing its allocation to education (recurrent education
budget excluding debt service) from 14 percent in 2010 to 16 percent in 2012 and reaching
eighteen percent in 2015. The priority of the government is basic education (first to the ninth
grade) but as a first step every effort will be made to get near to universal completion of primary
schooling by 2015. The share of the government’s budget allocated to primary education is
projected to rise from 39.2 percent in 2008 to 41 percent in 2010, 43 percent in 2012 and reach
45 percent in 2015.
C. Higher level objectives to which the project contributes
45.
The objectives of the three-year project proposed for funding under the EFA FTI CF are
in line with the Joint Assistance Strategy (IDA and AfDB), presented to the Board in 2009, and
with Liberia’s PRSP introduced in March 2008. The Joint Assistance Strategy pursues three
strategic themes: (i) rebuilding core state functions and institutions; (ii) rehabilitating
infrastructure to jump-start economic growth; and (iii) facilitating pro-poor growth. The
government’s first full PRSP (2008–2011) has four core strategic areas of intervention: peace
and security; economic revitalization; governance and rule of law; and infrastructure and basic
services including education. In addition, it pursues a number of priority cross-cutting themes,
including gender equity, peace-building, environmental issues, HIV and AIDS, children and
youth, and monitoring and evaluation.
II.
CATALYTIC FUND DESCRIPTION
A. Grant instrument
46.
With the continued high country risk as identified by both the financial and procurement
assessments, the team considers the investment grant to be the best adapted instrument to the
fiduciary realities.
B. Program objective and phases
47.
The MOE has completed a ten-year ESP (2010-2020) which includes a short-term
plan/framework covering 2010/11 to 2012/13. The proposed CF contributes to the ESP’s
objective of providing quality basic education. It also takes into consideration cross-sectoral
issues of early childhood development (ECD), school health and HIV-AIDS.
C. Project development objective and key indicators
48.
The CF will support the long-term development objective of the Liberian education
sector to implement the ESP and to reach quality universal primary education by 2015.
49.
The CF’s development objective is to increase access to basic education with a
particular focus on poor areas, to improve conditions of teaching and learning, and to
improve school management and accountability.
50.
The following indicators, which are a sub-set of the ESP indicators, are proposed.
Table 5: Indicators for Baseline and Target years
PDO Indicators
Basic education completion rate
(%)2
Direct project beneficiaries
(number) – of which female
(%) (Core Indicator)
Textbook- Student Ratio at
basic education level (defined
as number of textbooks aligned
with new curriculum to
students)
Teachers having at least one
teaching guide (%)
Schools managed by a SMC or
PTA (%)
School grants implemented in
accordance with agreed upon
procedures (%)
Intermediate Outcome
Indicators
Number of additional
classrooms built or rehabilitated
at the basic education level
resulting from project
intervention (number) (Core
Indicator)
Cost-effective Early Childhood
Development model designed
2
Baseline
2008
Target 2012/2013
49%
56%
0
470,000
0:0
1:2
0
80%
0
60%
0
60%
Baseline
2008
Target 2012/2013
0
108
No
Yes
The "basic education completion rate” is arrived at by averaging the primary and secondary completion rates.
and piloted (yes/no)
Children benefiting from deworming interventions
(number)
Unified HR database (Civil
Service Agency, MOE, MOF)
developed and maintained
(yes/no)
Development of a pay and
grade scale for teachers
(yes/no)
Availability of annual sector
statistics by May of each year
(yes/no)
System for learning assessment
at the primary level (rating
scale) (Core Indicator)
DEOs using the new assessment
instruments (%)
0
300,000
No
Yes
No
Yes
No
Yes
No
Yes
0
75%
D. Catalytic Fund components
51.
The CF program has three components, each of which is discussed in detail in Annex 4.
52.
Component 1: Increasing access and equity in rural areas (US$15.5 million). The CF
support would finance activities to increase the supply of education. Demand side interventions
will not be supported under this grant application in light of the fact that the government and
donor partners thought it prudent to wait until the results of a current social cash transfer pilot
and a proposed out-of-school children study, both undertaken by UNICEF, are available to begin
to design interventions.
53.
This component will support the construction and/or rehabilitation of classrooms,
administration facilities, latrines and water points in the selected primary and junior secondary
schools, taking into consideration the special circumstances of remote and hard-to-reach areas,
by using two different approaches. The first approach will be a delegated management approach
whereby a competent firm will be hired for the management and supervision of the construction
program (up to 24 primary schools and 20 junior high schools), while the second approach will
be a community driven development (CDD) approach for the construction of up to 16 primary
schools in hard-to-reach areas where it is difficult to find contractors.
54.
Under the existing Education Pooled Fund (EPF), the school construction activities were
managed by contract management agencies. After a review of the agencies’ implementation of
the construction program, it has become evident that the agencies are not providing adequate
supervision of the work. At present, they seem to consider that their role is only to report on
progress at the sites. This seems to be an endemic problem that affects all construction projects
in Liberia. There has been very little construction of any type in the country for the last 25 years.
Consequently, only a handful of Liberian architects and engineers possess the experience of
constructing buildings to an acceptable standard. The few who have the desired experience are
unlikely to have the capacity to take on additional construction work. It is proposed therefore
that a qualified firm of civil works consultants be contracted to manage and supervise the
construction of the proposed EFA FTI CF school-building program in collaboration with local
Liberian firms, where possible. (see more details in Annex 6)
55.
The Division of Education Facilities (DEF) in the MOE will be in charge of the norms
and standards of school construction and the supervision of the construction program in
conjunction with the firm to be recruited under the CF. The standardized school designs exist but
need some final adjustment to meet the needs of children with disabilities. For the hard-to-reach
areas, a CDD approach is proposed. The MOE is currently engaged in a school mapping and
micro-planning exercise, with support from UNICEF, which will provide much-needed data for
selection of school sites according to demand. During the selection process 16 remote villages
with difficult access and only sufficient primary school age children for a three-classroom
primary school (i.e. below 132 children aged 6 to 11) will be selected for a pilot program of
community-based primary school construction. Part of the selection process will include a
discussion with community members in the selected villages of the communities’ responsibilities
with regard to the construction and maintenance of the schools and only those communities who
agree to fulfill these responsibilities will be included in the CF. Before the schools are
constructed, the MOE will have to ensure the availability of teachers for the school, especially in
light of the fact that teacher deployment and retention to rural areas is a problem.
56.
Component 2: Improving the conditions of teaching and learning (US$14 million).
In light of the fact that teacher training is being sufficiently supported by other donors, the
activities under this component will not focus on teacher training but will include other
complementary activities that will enhance the conditions of teaching and learning.
57.
This component would include: (a) provision of learning materials to both students and
teachers (approximately 1,000,000 textbooks for students in grades 5 to 9 of basic education and
approximately 20,000 sets of teacher guides); (b) provision of grants to schools [subgrant given
to school] after a rigorous review of the existing system; (c) support for ECD models with a
focus on community-based ECD provision in rural areas and systems development; and (d)
school health, including de-worming of children in eight counties (Bomi, Bong, Gbarpolu, Grand
Bassa, Grand Cape Mount, Lofa, Margibi, and Montserrado).
58.
Provision of learning materials. The CF will support the supply of textbooks aligned
with the revised curriculum for students in basic education (grades 5-9) and a set of teacher
guides. The teacher guides will provide teachers with the methodology necessary for using the
textbooks in the classroom. A total of 1,000,000 textbooks and 20,000 guides would be
purchased.
59.
Technical support to improve the implementation of school grants. This project will be
used to finance activities that will help the government to improve its current initiative through
technical assistance to strengthen the process including the set-up of a school committee at each
school. It will support: (i) development of a School Grants Guidelines including allocation
criteria, financial management rules, and roles and responsibilities of the stakeholders involved
and (ii) provision of school grants to the selected primary and junior secondary school. In the
second year of implementation, based on the preparatory work, the project will finance the
scaling up of current school grants based on a formula comprising school size and hardship
(disadvantaged vs. more well-off schools). UNICEF supported the MOE with the development
of a school fee abolition policy which addresses many of these issues including some scenarios
for use of the grants as well as the distribution and monitoring of the grants. The policy is
currently awaiting adoption and implementation. Schools grants will also be provided to junior
high schools using a different formula as junior high school students are still paying fees. This
will support the eventual abolishment of fees as the junior secondary level as endorsed by the
current education law.
60.
Support to early childhood development. Support to early childhood development (ECD)
is listed as a key strategy for reducing inefficiencies (late enrollment, grade repetition, early drop
out) at the primary level in the ESP. This activity will support the development of an ECD
strategy and the strengthening of the system through the design and implementation of a costeffective ECD model for rural areas—two areas listed in the ESP that are feasible short-term
activities for the government to implement in cooperation with partners. The CF will support up
to 10 community-based ECD centers in upgraded rural markets and low-cost structures in
villages through the provision of equipment and play/learning materials, training for locallyrecruited educators, and minor renovations. Sites will be located in rural areas with strong
community demand and sufficient numbers of underserved 3-5 year old children. In ten of these
sites, the ECD facility will be within the vicinity of the community-built primary school, to
ensure the smooth transition of students between ECD and primary school. The CF will also
assist other donor partners (OSI/Soros, Plan International, UNESCO, Save the Children)
involved in strengthening the ECD system by supporting the development of quality standards
and guidelines, child-centered curriculum, and teacher training and certification frameworks.
61.
Support to school health. The School Health Unit has been actively implementing a life
skills program with support from UNFPA and UNICEF which includes HIV awareness and
prevention activities. Also the unit has been de-worming students as part of the total package of
activities (the package includes the WFP school meals) that focus on improving the quality of the
learner. The CF will finance the development of learning materials (life-skills modules for
students in basic education covering a broad range of health issues such as reproductive health,
and waterborne diseases), de-worming of 300,000 primary school students in eight counties, and
training of teachers (3,000) in life-skills and de-worming. It will also strengthen the capacity of
the School Health Unit to be able to undertake these activities on its own initiative.
62.
Component 3: Strengthening central and local levels to operate in a decentralized
education system by developing management and monitoring and evaluation capacities.
(US$10.5 million). Under this component, the CF support will strengthen the MOE structures at
central and school levels. Activities under this component will include (a) the establishment of a
Project Support Team (PST) to assist with the day-to-day management of the CF project; the
PST will include a project coordinator and financial management and procurement specialists;
(b) capacity building for the Departments of Planning, Administration, and Instruction; (c)
school building management and supervision at the central level; (d) training of DEOs and
school directors for monitoring and tracking school level data in close collaboration with EUfunded project, as well as training of DEOs and teachers on the use of learning assessment
instruments; (e) TA for the design of a national assessment instrument; and (e) TA to strengthen
personnel and payroll management.
63.
Support to institutional reform with a focus on monitoring and evaluation. The CF
support will strengthen the MOE structures both at central and school levels. At the central level,
the CF will support (a) the establishment of a Project Support Team (PST) comprising a project
coordinator, financial management and procurement specialists to assist with the day-to-day
management of the CF project; (b) capacity building for the Departments of Planning,
Administration, and Instruction.
64.
Under this component, the following assessments will be developed or scaled-up: (a)
development of a national assessment test for grades 4 and 7, focusing on math and reading
comprehension; (b) development of school level assessment tools; and (c) scaling up of current
early grade reading assessment and introduction of early grade math assessment. These three
interventions are discussed in greater detail below.
65.
At the system level, the CF will provide technical assistance for the development of a
national assessment test for grades 4 and 7 that will focus on math and reading comprehension.
The MOE will move to abolish the WAEC exam administered in grade 6 and make the current
9th grade WAEC exam promotional.
66.
At the school level, the CF will support training and technical assistance for monitoring
and evaluation. This will include the development of assessment tools at the school and
classroom level as well as the training of DEOs and school directors on monitoring and tracking
of school level data, including attendance of teachers and students, parental and community
involvement, and instructional time. Also, in conjunction with the strengthening of the
government’s school grant system in component 2, the CF will support the strengthening of
PTAs/SMCs in selected public basic education schools.
67.
The CF will also support training of DEOs and teachers on the use of learning assessment
instruments as a monitoring tool for early grade reading and math performance.
68.
Strengthen personnel and payroll management. USAID has been supporting the MOE in
conducting a payroll verification study that will update and systematize employee information.
This exercise will also contribute to the MOE’s capacity to plan and monitor human and
budgetary resources through the creation of an easily-updatable database and identification
system. The CF will complement the ongoing TA support provided under the civil service
reform project under the World Bank’s Poverty Reduction and Economic Management
Department to reinforce the personnel and payroll management. This includes managing of
Integrated Financial Management Information System (IFMIS) by MOE, setting up of a pay and
grade scale for teachers according to experience, qualifications, and performance. The CF will
also support studies and surveys to evaluate the motivation and conditions of teachers, including
recommendations for how the government can assure regular and timely payment of salaries in
remote and hard to reach areas as well as deployment strategies to attract teachers to these areas.
69.
The following table outlines which of the various ESP objectives the CF components will
address:
Table 6: ESP Objectives and their link to the CF Components
ESP Objectives for Primary, Teacher Matters, Governance and Management, and
Monitoring to which the CF will contribute
Primary Education Specific Objectives
Obj. 1: To make the provisions necessary for all children to start at the right age and complete
primary level of a minimum stipulated quality
Obj. 2: To put in place provisions and structures so that no child is denied primary education
because of age, language and circumstances
Obj. 3: To put into operation a strategy and framework for greater efficiency and cost
effectiveness
Obj. 4: To make those provisions and arrangements that result in the school environment being
clean, sanitary, violence-free and conducive for all students, especially girls, to feel safe and at
ease
Obj. 5: To reduce the possibility of staff and students at the primary level contracting/spreading
HIV/AIDS
Project
components
1 and 2
1 and 2
1
2
Teacher Matters Specific Objectives
Obj. 1: To provide adequate training and professional development programs for teachers
Obj. 2: Ensure teachers are motivated and supported to carry out their responsibilities
3
Obj. 3: To ensure deployment of teachers to rural and underserved areas
3
Obj. 4: To upgrade the status of the teaching profession
3
Obj. 5: To increase the number of females in the teaching profession
Obj. 6: To improve efficiency in teacher management
Governance and Management Specific Objectives
Obj. 1: To develop the institutional capacity for management at the central, regional, and local
levels
Obj. 2: To increase planning and management capacity
3
1 and 3
3
Obj. 3: To increase transparency and accountability throughout the system
2 and 3
Obj. 4: To strengthen decentralized system
2 and 3
Monitoring Specific Objectives
Obj. 1: To clarify the roles and responsibilities of different institutions and departments at national
and local levels in monitoring and supervision
Obj. 2: To strengthen the capacities of District Education Offices and County Education Offices
in Monitoring and supervision, including classroom assessment of learning
3
3
Obj. 3: To strengthen record keeping capacity at the school/community level
Obj. 4: To decide on a set of outcome indicators for monitoring progress towards ESP objectives
and outline mechanism for monitoring plan progress
3
Obj. 5: Improve the EMIS and the analysis and use of EMIS data
3
3
E. Lessons learned and reflected in the project design
70.
The Dutch/UNICEF Education Fund pooled with Soros Foundation resources has set the
path for an important partnership in support of the LPERP. This program was implemented by
the MOE and was the first program to be directly implemented by the government after the civil
war. The MOE will, during implementation, take full responsibility for the financial management
that has, so far, been supported by the Ministry of Finance’s (MOF) Project Financial
Management Unit (PFMU) with regard to financial management and procurement. A PST will
be established in the MOE for this purpose and to improve the coordination of external
financing. The revised sector coordination and implementation arrangements, as compared to the
pooled funding structure, are more aligned with ministry structures enabling full ownership of
the CF by the MOE. Currently no donor has shown interest in pooling funds using these new
improved implementation arrangements, but if the situation should change, other sources of
funds can utilize the arrangements.
71.
were:

Some of the other important lessons learned from the current pooled funding mechanism
The implementation capacity and as a result the absorptive capacity of the system was
higher than was anticipated. Under the pooled fund, US$12 million was committed and
US$6 million disbursed within a year in support of textbooks, school construction, and
rehabilitation of and equipment for teacher training institutions. The ministry therefore
gained some capacity in managing smaller projects with limited components. Capacity
will however have to be increased substantially if the Ministry is to manage a larger
project with new and unfamiliar procurement and financial management arrangements.
The CF will feature a strong Project Support Team (PST) that will implement the CF and
support the development of the capacity of the MOE to manage such projects is built
(component 3).
 The need for developing a detailed implementation plan that includes government and
donor activities to ensure coordination and complementarity. The LPERP did not have an
implementation plan at the initial stage which caused innumerable problems and it is
fundamental therefore to provide a general framework at the very beginning that includes
the support of all partners and other bodies responsible for execution of activities. The CF
will have an implementation plan for the first eighteen months which will be available at
approval and which will guide the work of the PST and the divisions within the three
departments responsible for implementation (component 3).
 Using delegated management for the construction of schools has borne some fruit,
however, challenges remain. Under the current pooled fund, 40 schools have been built
using this delegated approach; however, little attention was given to the supervision of
the work. It is proposed that an firm of civil works consultants should be contracted to
supervise the construction of the proposed schools under the EFA FTI CF (component 1)
 A new approach needs to be taken in order to build schools in hard-to-reach and rural
areas as it became apparent during LPERP implementation that it is extremely difficult to
get contractors to bid on projects located in remote communities. The use of a more
flexible approach involving NGOs as well as involvement of the communities in these
areas should increase local accountability and ownership (component 1)

The procurement of textbooks needs to be planned in detail. During the pooled fund
implementation, the procurement of textbooks was delayed and the text books were kept
in storage in warehouses for a lengthy period. This project will use competitive bidding
procurement procedures which would include the delivery of learning materials to the
districts or classrooms (component 2).
72.
As Liberia still faces considerable challenges in addressing access to educational
opportunities, especially in rural areas, the CF will prioritize addressing access and equity and
increasing management capacity. Improvements in these areas will lay the foundation for
addressing learning outcomes. Without the required fundamental educational inputs (i.e. schools,
textbooks, teachers), it is impossible to focus on learning outcomes. In light of this, under
component 2 of the project, several interventions are planned to provide educational inputs
(textbooks and school grants) but also to look at ECD and school health to begin to plan for
improved learning outcomes.
F.
Alternatives considered and reasons for rejection
73.
The use of a Development Policy Operation (DPO) was rejected, because the main focus
of the program is on urgently needed investments in a variety of areas including school
construction, provision of textbooks and capacity building rather than on a policy reform
program. Some key policy reforms such as improving sectoral budget allocation, developing a
framework for institutional capacity building at district and school levels, and improving
personnel management have been included in the upcoming programmatic DPO prepared by the
World Bank´s Poverty Reduction and Economic Management (PREM) unit.
74.
The recent public expenditure management and financial accountability review
(PEMFAR) conducted an assessment of Liberia’s financial management and procurement
systems. Weaknesses were identified with specific reference to internal audit, external audit,
legal and regulatory framework, budgeting, procurement and concession as well as cash and debt
management. The risks associated with procurement and financial management are rated high.
75.
With the continued high country risk as identified by both the financial and procurement
assessments, the team considers the investment grant based on World Bank procedures to be the
best adapted instrument to the fiduciary realities.
76.
The current pooled fund was considered as a possible option; however, the following
concerns were highlighted:



Governance: No threshold under which the MOE can work freely without each request
going through the advisory board made up of contributing donors. As some contributing
donors might not have a permanent in-country representative, attending such Board
meetings on a more regular basis might be a problem if this were to be warranted by an
increase in activities resulting from increases in funding and/or donors.
Financial reporting: quarterly financial reports are not prepared on time;
Planning and monitoring: annual action plans are not submitted on a regular basis and
implementation plans have not been prepared since June 2009;


Financial management and procurement: the pooled fund is currently using public
financial management procedures that have been identified by the World Bank
assessment as high-risk. To date, an annual audit of the pooled fund has not been
undertaken. It is expected that an audit will be undertaken by fall 2010; and
No new donors have been attracted to join the fund: The Liberia Reconstruction Trust
Fund and Heath Sector Pooled Fund have been more successful in increasing the number
of donors pooling funds.
77.
Throughout implementation, the CF would remain open to a pooled fund arrangement if
other donors/partners are interested in joining.
III.
IMPLEMENTATION
A. Partnership arrangements
78.
The allocation of resources used to establish the Education Pooled Fund marked the first
step toward the establishment of a partnership in support of the LPERP. The allocation of
US$16.25 million has been utilized primarily on access and quality inputs. The EFA FTI,
through the CF, would mark yet another landmark by galvanizing support for the government’s
ESP and providing funds to begin to implement reforms to assist in accelerating Liberia’s
progress towards meeting the MDGs in education.
79.
The ESP, prepared in close collaboration with the in-country donor team, is the agreed
framework for FTI support. A recent positive development in support for the education sector
has been USAID’s approval of a new project aimed at expanding access to and improving the
quality of basic education for children and youth (ages 10-35). The EU’s support for the sector is
on track with the establishment of strong technical teams for education statistics data collection
and analysis; and teacher training.
80.
The first joint annual sector review took place in June 2009. It has been agreed that
reviews should be conducted twice a year. These reviews bring together all key stakeholders in
the sector and include, among others, representatives from Ministries of Planning and Finance,
donor and implementation partners, the MOE’s Senior Management Team (SMT), representation
from counties and districts, including civil society and parent-teacher associations. These
reviews allow consultations among stakeholders and the building of national ownership of
education sector reforms. They will also allow stakeholders to: review and advise on the
development of the annual implementation plans to ensure consistency with the ESP; assess
progress of the ESP implementation including performance indicators; and review the education
budget and conduct field visits to assess results at school level.
B. Institutional and implementation arrangements
81.
The CF will be implemented by the MOE and will use existing structures and units.
These structures would be reinforced by a project support team (PST) to provide day-to-day
support for CF implementation.
82.
Overall CF coordination. The senior management team (SMT) is the executive body of
the MOE. It consists of the Minister of Education and Deputy Ministers for Administration;
Instruction; and Planning, Research and Development, the Assistant Ministers and the MOE
financial comptroller. The SMT will be charged with the overall policy direction together with
the key implementation decisions regarding the sector and therefore the EFA FTI CF as well.
The SMT delegates implementation to the relevant assistant ministers/departments as necessary.
The SMT will work in close collaboration with the Project Financial Management Unit (PFMU)
of the Ministry of Finance (MOF), particularly in the area of financial management and
disbursement. These structures have been functioning for the past year through the
implementation of the LPERP. The existing PFMU at the MOF takes up the responsibility to
manage funds under the CF for the first eighteen months of the project and thereafter it would
transfer this responsibility to the MOE subject to (a) the bureau of General Auditing
Commission’s (GAC) recommendation; and (b) a favorable World Bank financial management
assessment.
83.
The CF will utilize some of the institutional arrangements created under the pooled fund
although with a few changes made to lessen the number of committees and groups originally
created under the fund. The arrangements are as follows:
84.
The Education Sector Development Committee-Executive Board (ESDC-EB) will serve
as the oversight body to oversee the implementation of the ESP. The ESDC-EB will be chaired
by the MOE. This body will provide oversight of the policies laid out in the ESP by providing a
forum for policy dialogue and decision-making at the macro level. The ESDC-EB will include
representatives from the Ministries of Finance and Planning, as well as donor representatives.
The ESDC-EB will meet quarterly and will report to the SMT of the MOE.
85.
The Education Sector Development Committee (ESDC) will incorporate the current local
education group which comprises the MOE, the donor partners, as well as other education
stakeholders such as implementation partners and civil society organizations. This will be a
forum for education stakeholders to be informed about education policy decisions and to report
on the progress of their relevant projects. At this level, technical working groups established by
the ministry will provide updates on their work.
86.
A Project Support Team (PST) within the MOE will be set up to assist with the day-today management of the CF project. The PST will comprise a project coordinator and two
financial management and two procurement specialists. The PST will fall under the Department
of Planning and each of the PST staff will be hired under performance-based contracts.
Additional capacity building will be provided within the MOE to strengthen sector management
to improve efficiency and accountability in the allocation and execution of external resources;
develop transparent planning and monitoring systems to achieve national education goals;
improve coordination, policy dialogue and utilization of domestic and external resources.
87.
The PFMU is a unit established within the MOF and is responsible for providing
financial oversight and technical support in financial management and reporting to selected
externally-funded projects in Liberia. Two financial management specialists will be recruited
under the CF project and will be given on-the-job training by the PFMU for a period of one year.
The PFMU will also be responsible for all disbursements, production of regular financial reports
and training the two financial management specialists hired under the CF project. At mid-term
review, FM responsibilities would be transferred to the MOE subject to (a) the GAC’s favorable
recommendation; and (b) a favorable World Bank financial management assessment.
C. Monitoring and evaluation of outcomes/results
88.
Since 2007, the MOE has been working in cooperation with the national statistics agency,
LISGIS, and with support from UNICEF and UNESCO, to conduct a yearly school census
survey. In general, these surveys have proved successful and have provided much-needed data
for the government, donors, and other education stakeholders. With support from the EU, the
MOE has started to think about making the collection, processing, and dissemination of
information a regular, sustainable process that will be firmly embedded in the MOE. The EU is
currently providing technical assistance to oversee this process. The outcome indicators for this
project will be included in the set of indicators to be tracked by a regular school reporting
system. This comprehensive set of indicators will be reviewed during the education sector
reviews, thus increasing the likelihood that the data will be made available at such times as to
ensure reaction to any trends in the data that signal the need for course correction in the EFA FTI
CF. At the project level, the Department of Planning will be responsible for making sure that
the data is available in a timely manner. Under the CF, qualitative surveys at the school level
will be introduced to complement the quantitative surveys currently in place. This combination
of surveys will provide information about school level outcomes, including attendance of
teachers and students as well as learning outcomes. Although it is unlikely that this detailed data
will be tracked in all schools, the CF will support the usage of qualitative and qualitative data to
drive policymaking. An independent auditor will conduct spot checks on school grants and
teacher attendance on a random and representative sample of schools on a quarterly basis for
each year of CF implementation.
D. Sustainability
89.
The sustainability of this operation will be driven by the degree of ownership and
capacity of the MOE at all levels and by the government’s continued commitment to education
in the national budget.
Financial sustainability. Based on the scenario proposed in the ESP, a financing gap has
emerged of US$50 million for basic education (US$1.5 million for recurrent costs and US$48.1
million for investment costs). The CF is projected to cover approximately 20 percent of the
program costs. A small gap would remain that will most likely be filled by new donor partners
coming into the sector (i.e. SIDA, and other bilateral agencies). Although macro-economic
performance has improved over the past couple of years and has been assessed as satisfactory,
the macroeconomic framework still remains fragile.
90.
91.
Government commitment. The education sector strategy outlined in the ESP and
supported by this grant is government owned, with the vision, goals, and implementation
arrangements articulated by the senior management leading the sector. The ESP has benefited
from extensive national and regional consultations with key stakeholders.
92.
Institutional sustainability. Over the past two years, the MOE has gained experience in
managing and implementing an education program through the establishment of the LPERP. In
addition, over the past few years, other donors have been supporting institutional reform. The
EU is providing long-term assistance (two-year) in the following areas: monitoring and
evaluation with support for the EMIS and supervisory mechanisms, public financial management
(PFM) reforms, teacher training, and some infrastructure support. Currently, USAID is also
providing short- and long-term training for MOE staff. If additional long-term training is
necessary, the MOE will ensure that those taking part will sign guarantees (bonds) to confirm
their commitment to return. Support to the counties and districts is expected to contribute to
institutional sustainability.
E. Critical risks and mitigation measures proposed
Risk factors
Description of risk
Country and/or Sub-National Level Risks
Macroeconomic
Liberia is transitioning from
Framework
post-conflict to economic
reconstruction and
development. The macroeconomic outlook is
promising with growth
improving steadily since
2004. The government has
made progress in stabilizing
the economy and improving
fiscal management with a
fiscal surplus of 3.8 percent
of GDP in 2007 and 1.2
percent of GDP in 2008. The
external public debt has
decreased from US$4.8
billion in June 2007 to
approximately US$1.7
billion at end-September
2009 largely as a result of a
1.2 billion commercial debt
buy-back. However, as the
latest Debt Sustainability
Analysis (April 2009) shows
Liberia is still under debt
distress and vulnerability to
external shocks. The
exchange rate is broadly
stable and although the
current account deficit is
relative high (above 40
percent of GDP) it is fully
financed, mostly by donor
transfers and foreign direct
investment.
Rating
of
Risk
Mitigation measures
Rating
of
residual
risk*
M
The medium-term economic outlook
is favorable, with growth rates
expected to improve to about 6
percent by 2010 supported by the
recovery of commodity prices and
consequently new investments in key
sectors including mining, forestry,
agriculture and services. The
maintenance of a balanced cash
budget and the recent increase in
reserves are expected to contribute to
the maintenance of broad
macroeconomic stability.
L
The country is expected to benefit
from further debt relief under the
HIPC initiative when it reaches
completion point in mid-2010. The
government also expects to benefit
from additional debt relief from Paris
Club creditors.
The government has prepared a
Poverty Reduction Strategy focused
on rapid pro-poor growth. In addition,
the government is taking specific
measures to address the various
dimensions of poverty including
improving health and education and
addressing gender inequities. The
government is also implementing a
cash-for-work program as well as a
school feeding program and a food
program for pregnant and lactating
women.
External shocks, particularly
from rising food and oil
prices as well as the
significant decline in primary
commodity prices, could
pose significant challenges
for Liberia going forward.
Country Risk
(political, security)
Poverty is pervasive in
Liberia. From the 2007
Demographic and Health
Survey, 64 percent of the
population lives below the
poverty line with most of the
poor living in the rural areas.
The high unemployment
situation remains a source of
concern for the authorities.
The security situation in
Liberia remains fragile
because of the number of
(mostly) unemployed excombatants who have yet to
be reintegrated into society,
the lack of strong domestic
institutions which can
mediate conflicts and enable
them to be resolved without
resorting to violence, and the
fragile political situation in
Liberia’s neighbors, Côte
d'Ivoire and Guinea.
Political risks loom large as
the population looks for a
substantial peace dividend.
Failure to deliver jobs and to
tackle corruption could result
in a lack of support for the
government’s reform agenda.
Potential for disruptions due
to upcoming elections in
2011. Not only a major risk,
but with limited scope for
identifying mitigating steps.
H
While within the context of this
project the security risks cannot be
mitigated directly, the activities
supported by the IDA-funded
Economic Governance and
Institutional Reform project will
contribute to addressing some of the
contributory factors to the country’s
civil strife and economic collapse. In
addition, the government is working
with the United Nations Mission in
Liberia (UNMIL) to maintain an
effective security presence in Liberia
including at the borders. UNMIL is
scheduled to remain in Liberia at least
until 2010.
The government is also using
communication outreach to better
inform the public of ongoing reforms
and the likely impact on the delivery
of public services.
The ESP has focused on involving, to
the extent possible, local actors at
county, district and school levels, in
hopes that the involvement of these
stakeholders, all of whom are
important to their elected officials,
will help stabilize policy gains in the
face of political pressure. The Project
Support Team to be established under
the CF will be able to mitigate some
of this risk by providing a core group
with contractual status and no political
H
Systematic
Corruption
The inadequacy of internal
controls in government
systems, the history of
widespread corruption during
the interim government and
lack of trained civil servants
also make this project a high
risk.
Sector-specific Risks
Public
Low salaries/benefits render
Administration
MOE jobs unattractive to
qualified personnel.
H
Basic Education
H
Delivery of school grants
without leakage.
Operation-specific Risks
Technical Design
Complexity of design and
ambitious activities.
Implementation
capacity
Implementation capacity risk
arises from the lack of
sufficient professional staff
and weak institutional
capacity and coordination in
the wake of the long history
of socio-political instability
and very limited foreign
assistance.
S
M
S
orientation that will not be changed
regardless of the outcomes of the
election.
The PFMU within the MOF addresses
this risk to a degree. Additionally, this
risk is further mitigated by the
capacity building of staff within the
PFMU and MOE (procurement and
financial management) complemented
by technical assistance and intense
Bank supervision.
M
Civil service reform is currently
ongoing to design a compensation
regime that attracts, retains and
motivates civil servants as well as a
pension scheme that ensures decent
post-service benefits.
Transparency via advertisement in the
local newspapers of the list of schools
receiving grants and amount to be
received. In the first year of CF
implementation, the MOE’s capacity
to administer the school grants via
CSBs at the local level will be
strengthened.
M
The operation builds on the activities
implemented under the LPERP. For
activities that were not successfully
implemented under LPERP, changes
have been made in project design for
the CF components.
The weak human resource capacity in
the public service represents one of
the main risks of this operation. This
risk will be mitigated through
strengthening management and
institutional capacity at central, county
and district levels. International
consultants will be recruited to
manage the construction program.
These capacity building activities will
be complementary to the EC support
started in 2009, which is providing
three long-term technical assistants for
two years in the areas of PFM, EMIS,
and teacher training. In the area of
PFM, the EU project will facilitate a
baseline assessment of PFM of the
education sector, including finance,
procurement, warehousing and
distribution; and central and
decentralized practices, including
related personnel needs analysis. For
L
S
M
the EMIS in particular, the EU project
will undertake a detailed analysis of
the EMIS to determine (i) weaknesses
in EMIS database structures, (ii)
weaknesses in policies and procedures
that affect, or could affect, the
sustainability of the system, and (iii)
functional weaknesses. In teacher
training, the EU project will provide
in-service training to unqualified
primary teachers in six counties.
Procurement
Limited procurement
capacity and experience with
World Bank procedures
H
While an international procurement
management firm was previously
hired under a World Bank project
(Economic Governance and
Institutional Reform Project) to build
procurement capacity within the
PFMU, this arrangement has now
ended. Two experienced procurement
specialists will be appointed under the
CF and will be located within the
MOE.
S
Financial
management
Limited financial
management capacity and
experience with World Bank
procedures. Weak financial
management and risk that
funds will not be used for the
intended purpose.
H
The PFMU in the MOF will be in
charge of financial management
aspects of this operation while the
fiduciary units in the MOE will be
strengthened during the course of the
project.
S
The EU project will also assist in
developing capacity to implement
PFM policies.
At mid-term review, FM
responsibilities would be transferred
to the MOE subject to: (a) the bureau
of General Auditing Commission’s
(GAC) favorable recommendation;
and (b) a favorable World Bank
financial management assessment.
Funds transfer to the schools will not
commence until the current system of
school grants has been strengthened.
This
would
include
(i)
the
development
of
school
grant
guidelines; and (ii) verification that at
least 400 Selected Primary and Junior
Secondary Schools have met the
eligibility criteria to receive grants.
Social and
Environmental
Potential negative
environmental and social
M
Per the requirements of the safeguard
policies, the project prepared an
L
safeguards
impacts related to the
construction of schools
Environmental and Social
Management Framework (ESMF) and
Resettlement Policy Framework
(RPF).
Overall risk (including reputational risks)
S
Rating scale: H=high; S=substantial; M=modest; L=Low or negligible
*Risk rating with mitigation
M
F. Grant conditions and covenants
Conditions for project effectiveness:
(e) The execution and delivery of the Grant Agreement on behalf of the Recipient have been
duly authorized or ratified by all necessary governmental action.
(f) An MOU has been entered into between the MOF and the MOE laying out their working
relationship and the respective responsibilities in accordance with Section I.B.2 of
Schedule 2 to the Grant Agreement. A draft MOU has been reviewed during negotiations.
(g) The PIM has been adopted by the Recipient satisfactory to the World Bank. The PIM has
been reviewed and will be finalized by September 18.
(h) A Project coordinator and two procurement specialists have been recruited to the PST
pursuant to terms of reference and qualifications acceptable to the World Bank and in
accordance with Section III of Schedule 2 to the Grant Agreement. The Expressions of
Interest have been published in the local newspapers and DG market.
Dated covenants:
(d) No later than six months after the Effective Date, the Recipient shall recruit and employ
an external auditor for the Project, with terms of reference and qualifications satisfactory
to the World Bank, in accordance with the provisions of Section III of Schedule 2 of the
Grant Agreement to perform the audits required under Section II.B of Schedule 2 to the
Grant Agreement.
(e) No later than two months after the Effective Date, the Recipient shall recruit and employ
two financial management specialists for the PST with qualifications satisfactory to the
World Bank.
(f) No later than twelve months after the Effective Date, the Recipient shall develop
templates, in form satisfactory to the World Bank, for the capture of expenditure
information from the Selected Primary and Junior Secondary Schools.
Other conditions:
93.
No withdrawal shall be made under Category (2) for School Subgrants for Part 2.b.2 of
the Project until the following conditions are met, in a manner satisfactory to the World Bank: (i)
development by the MOE, with technical assistance financed under the CF Project, of the School
Subgrant Guidelines; and (ii) verification that at least 400 of the Selected Primary and Junior
Secondary Schools have met the eligibility criteria to receive Subgrants.
Retroactive financing:
94.
Withdrawals up to an aggregate amount not to exceed US$400,000 may be made for
payments made on or after July 21, 2010 to cover eligible expenditures relating to the
recruitment of contractual staff.
IV.
APPRAISAL SUMMARY
A. Economic and financial analyses
95.
Since 2004 “average real spending for education has increased by 26 percent per year”
(PEMFAR, 2008). These increases however have largely mirrored overall total increases in
government expenditure and hence the change in the percentage going to education has been
minor.
96.
With these increases, it is worth noting that Liberia is seemingly giving due attention to
primary education and, in doing so, is meeting the EFA indicative target of approximately 50
percent of expenditures on primary education. However, expenditure on secondary education is
of concern as the percentage of expenditure observed is due to the adjustment upwards from 6 to
7 years of schooling and the contribution of expenditure for technical and vocational education
and training (TVET) which is larger than for general secondary education alone. Liberia
compares very favorably with its neighbors and other post-conflict sub-Saharan countries in
terms of expenditure on primary education as the table below shows.
Table 8: Comparative Distribution of Public Spending on Education by Level for Selected West African and
Post-Conflict Countries
Country
Burkina Faso
Benin
Liberia
Gambia, The
Chad
Sierra Leone
Rwanda
Cote d'Ivoire
Sub-Saharan Africa Average
Guinea
Burundi
Senegal
Cameroon
Togo
Ghana
Mali
Guinea-Bissau
Nigeria
% on Prim (adjusted to
6 years)
60.3
50.7
50.6
49.8
49.6
48.2
47.1
46.6
44.4
44.4
44.4
44.4
40
40
39.3
35.3
33.3
29.1
% on Sec (adjusted to
7 years)
17.5
27.2
31.4
25.8
29.1
29.8
23.9
32.7
34.3
30.8
28.1
27.9
45
39.7
39.1
48.4
43
51.2
% on Higher
Ed
22.2
22.1
18
24.4
21.3
22
29
20.7
21.2
24.8
27.5
27.7
15
20.3
21.6
16.3
23.7
19.7
GDP per capita
2006
429.9
545.1
176.3
307.1
624.9
252.5
263.5
927.9
1,699.7
361.3
110.5
760.9
1,008.2
344.1
560.9
490.1
185.0
797.0
Source: Authors’ Estimates Based on World Bank Data, 2008
97.
A simulation model was used to determine the resources needed to obtain the objectives
in education. The CF is projected to cover approximately 20 percent of the overall education
program costs (2010-12). Based on the scenario proposed in the ESP, a financing gap for 20102012 has emerged in the amount of US$1.5 million for recurrent costs and US$48.1 million for
investment costs. (A complete economic analysis is provided in Annex 9).
B. Technical
98.
The CF will strengthen the education system and lay the foundation for more investments
in the sector. The priorities of the CF support have been selected to support the Government of
Liberia in implementing the first three years of the ESP in coordination with government and
donor financing. Direct support to schools and training of DEOs and school directors to fulfill
their roles will allow for greater ownership, better accountability and improved cooperation
between government and civil society in order to promote equity and ensure quality service
delivery. Both teachers and students will be provided with learning materials. The school
construction approach was based on lessons learned from the LPERP currently under
implementation and experience from the World Bank’s CDD project also under implementation.
C. Fiduciary
99.
Financial management arrangements. The financial management assessment of the MOE
established that the financial management system in operation did not meet the minimum
standards required by the Bank. The assessment recommended a number of actions, short- and
long-term, to address the shortcomings of the FM system and proposed an interim solution
whereby an established governmental agency would take FM responsibility for the CF.
100. Due to weak financial management capacity at the MOE and the need to ensure effective
and efficient management of resources, it has been agreed that the existing PFMU at the MOF
will have the responsibility of managing the funds under the CF for the first eighteen months of
the project and thereafter it would transfer this responsibility to the MOE subject to (a) the
bureau of GAC’s recommendation and (b) a favorable World Bank financial management
assessment.
101. The FM risk rating for the CF would be no more than substantial (S) if the short- term
recommendations are implemented. In that regard, the PFMU/MOF will be responsible for the
day-to-day financial management of CF funds. The PFMU will establish an effective accounting
system that provides for adequate segregation of functions, is capable of recording all accounting
transactions, and reporting correctly all assets and liabilities of the project. The PFMU will adopt
the cash basis in the treatment and recording of all transactions. In addition, the PFMU will
maintain a statement of liabilities outstanding at all times to correctly reflect the project’s
indebtedness to suppliers and third parties. The financial management system will follow the
financial accounting procedures established for ongoing projects under the financial management
of the PFMU. The working relationship and the respective responsibilities between the PFMU
and the MOE will be outlined in a Memorandum of Understanding (MoU). The signing of the
MoU is a condition for effectiveness.
102. In order to limit risk exposure, transfer of funds to schools will not commence until the
current system has been evaluated and strengthened. The funds for the school grants will be
released subject to (i) development of school grant guidelines; and (ii) verification that at least
400 of the selected primary and junior secondary schools have met the eligibility criteria to
receive grants. Individual schools will be transferred the funds upon successful completion of a
sub-project agreement including (a) opening of bank account, (b) the establishment of a school
management committee (SMC) and (c) the identification and training of staff to take up
responsibility for the management of funds transferred.
103. Procurement arrangements. Procurement for the proposed project will be carried out in
accordance with the World Bank’s “Guidelines: Procurement under IBRD Loans and IDA
Credits,” dated May 2004, revised in October 2006 and May 2010, and “Guidelines: Selection
and Employment of Consultants by World Bank Borrowers,” dated May 2004, revised in
October 2006 and May 2010, “Guidelines on Preventing and Combating Fraud and Corruption in
Projects Financed by IBRD Loans and IDA Credits and Grants”, dated October 15, 2006 and the
provisions stipulated in the Grant Agreement. The specific key risks for MOE procurement are
related to the fact that the MOE staff have not had the opportunity to engage in procurement of
goods, works and services under comprehensive donor guidelines such as the Association’s.
Further risks are the weak qualifications and training base for the subordinate staff. The overall
procurement risk is high. There is a need to recruit two procurement specialists to provide the
required guidance, coaching and mentoring to the staff of the procurement division of the MOE
for at least 12-18 months. These key risks and mitigation measures, as well as the responsible
parties and implementation timeframes for addressing these risks are captured in the table below.
Table 9: Key fiduciary risks and mitigation actions
No
1
Key risk
Lack of opportunity to have a
more experienced Procurement
Specialist to “look over the
Unit’s shoulder” providing
guidance, coaching and
mentoring to instill the
confidence needed in conducting
procurement.
104.
Mitigation Actions
Recruit two procurement
specialists for at least 12 to 18
months to provide the required
guidance, coaching and mentoring
to the MOE staff to instill the
confidence needed in conducting
procurement.
By Whom
MOE
upon
discussions
By When
By
effectiveness
date.
and
agreement
by the
TTL
The proposed action plan to address the deficiencies in the assessment is as follows:
i.
There is an urgent need for MOE to recruit two procurement specialists from Liberia
(if available) or the sub-region to provide procurement support to MOE for at least
twelve to eighteen months.
ii.
Prior to the commencement of project implementation, a Project
Operational/Implementation Manual should be prepared that would, among others,
confirm the organizational arrangement for the management of procurement; provide
detailed terms of references for the staff, and outline the functional relationships and
interaction between the project staff responsible for procurement and the relevant
units for administration and finance within the MOE. In addition, the manual would
offer clear instructions and guidance for the management of procurement records.
iii.
At project start-up, an orientation of the staff on the principles of good procurement
planning and practice, including discussions on procurement arrangements under the
project, may also be provided by the procurement specialist. This would also be
followed with the specialist’s participation in sessions for annual work plans and
budgets, procurement planning, etc. and overall procurement support to MOE.
105. With these measures in place, and with the Bank office providing reviews and noobjections, as required, the project can be successfully implemented.
D. Social
106. Several major constraints have been identified to the effective access and completion of
basic education by all children. Issues of particular concern are: (i) significant burden carried by
households in financing education, especially amongst the poorest households; and (ii) inequity
in the supply of education, with the rural areas being disadvantaged. The government has
integrated the removal of these constraints in its ESP. By increasing the number of school places
and by bringing the schools closer to the communities the CF will help to reduce the gap in terms
of access between rural and urban areas and between children with or without physical
disabilities. The school designs for the CF-financed schools will ensure greater accessibility for
children with physical disabilities.
E. Environment
107. The infrastructure activities planned under the CF are addressed in both the
Environmental and Social Management Framework (ESMF) and the Resettlement Policy
Framework (RPF). A screening mechanism is in place which will ensure that all new
construction, rehabilitation, and extensions of classrooms will be screened for their
environmental and social impacts and, where called for, limited environmental analyses will be
carried out to mitigate the impact. The delegated management agency (firm recruited under the
CF) will include a chapter on environmental and social safeguard issues in its progress reports.
F. Safeguard policies
108. The CF has triggered OP 4.01 Environmental Assessment and OP 4.12 Involuntary
Resettlement due to potential negative environmental and social impacts related to the
construction of schools. These impacts are likely to be very minor with regard to resettlement as
the project will focus on rural areas where there is ample land. In addition, the majority of
schools will be built in locations where schools have been built in the past and need to be rebuilt.
The safeguard screening category is S2, and the environmental screening category is B. To
address potential negative impacts consistent with the requirements of these safeguard policies,
the project has prepared an ESMF and a RPF which have been disclosed in-country and at the
World Bank Public Information Center. In addition to describing the environmental and social
screening process, the ESMF makes recommendations regarding the need for capacity building
to ensure its effective implementation as well as consultations with potentially affected persons
as part of the screening process that will take place at the time construction plans are prepared.
The costs of the ESMF and RPF recommendations will be covered under the CF.
Safeguard Policies Triggered by the Project
Environmental Assessment (OP/BP 4.01)
Natural Habitats (OP/BP 4.04)
Pest Management (OP 4.09)
Physical Cultural Resources (OP/BP 4.11)
Involuntary Resettlement (OP/BP 4.12)
Indigenous Peoples (OP/BP 4.10)
Forests (OP/BP 4.36)
Safety of Dams (OP/BP 4.37)
Projects in Disputed Areas (OP/BP 7.60)*
Projects on International Waterways (OP/BP 7.50)
Yes
[X]
[]
[]
[]
[X]
[]
[]
[]
[]
[]
No
[]
[X]
[X]
[X]
[]
[X]
[X]
[X]
[X]
[X]
G. Policy Exceptions and Readiness
*

The draft procurement plan for the first 18 months of activities was agreed upon during
negotiations.

The ESMF and RPF were disclosed in country and at the World Bank’s Public
Information Center prior to CF appraisal.
By supporting the proposed project, the Bank does not intend to prejudice the final determination of the parties' claims on the
disputed areas
Annex 1: Country and Sector or Program Background
LIBERIA: FAST TRACK INITIATIVE GRANT FOR BASIC EDUCATION
1.
Liberia is a poor post-conflict country of 38,350 square miles located in West Africa. It is
the oldest independent state in Sub-Saharan Africa. According to the 2008 population census,
Liberia has a population of approximately 3,476,608 million people, 53 percent of whom are
below 20 years of age. The UN Population Division reports that Liberia has one of the fastest
growing populations in the world. For the period 1995 to 2025, the UN estimates project an
annual population growth rate of 3.8 percent.
Structure of the Education System
2.
The structure of the system is typical of the sub-region and is referred to in the Anglophone countries as the 6-3-3-4 system (6 years of primary education, 3 years of junior high
school education, and 3 years of senior high school education and 4 years of tertiary education).
3.
Given the long years of conflict and the paucity of provisions in some areas of the
country, the number of individuals who missed out on primary level education is very high. For
this segment of the population who are already young adults, taking 6 years to complete primary
level education is a disincentive. Therefore, the ALP was established by the government with the
support of development partners in order to provide a less formal and shorter route (3 instead of
6 years) to the completion of primary education. According to the school census for 2007-2008,
the ALP is mainly donor-funded and counts a total enrollment of 75,820 students. A rigorous
evaluation of the program to shed light on ALP students’ performance and attendance has not
been carried out to date.
4.
Although the government is ultimately responsible for providing education and training
in Liberia, private institutions constitute a very large part of the delivery of education and
training services. Available data indicates that, without the input of partners, the government
would find it almost impossible to meet the nation’s demand for education. Private sector
organizations, including faith-based entities (Christian and Muslim), large corporations and local
communities are now major providers of education and training services. In particular, it is worth
noting that above the primary level, public schools account for less than 50 percent of all
enrolled students. This is most likely a result of the fact that there are a limited number of public
secondary institutions as well as a reflection of the fact that parents oftentimes feel that their
children can get a better education in private institutions. However, as noted above, fees for
private institutions create a burden on cash-strapped families, especially those families with
several school-age children. The table below shows the distribution of enrollment by provider
type.
Table 10: Distribution of Enrollment by Provider – Pre-Primary to Secondary - 2007/08 (%)
Proprietor
Preprimary Primary
Public
Private
Mission
Community
62
16
8
14
57
18
12
13
Junior
High
40
27
25
7
Senior High
29
30
37
4
Source: Based on data from the MOE 2007/08 School Census
5.
The public sector is the largest provider of education at both pre-primary and primary
levels. At junior and secondary high levels, private provision has surpassed the public sector as
noted in the table above.
6.
The relative increase in the percentage of students enrolled in community schools (from
5,438 in 1989 to 153,494 in 2008) is a reflection of the increase in demand for education by all
sectors of the society and in all parts of Liberia. It is also a reflection of the fact that the
government does not have enough resources or capacity to address this demand as community
schools are funded by the local communities and staffed by volunteer teachers. Most often, these
schools are made of local materials (i.e. sticks, thatch, palm fronds). Children attending such
schools have little access to any type of curriculum-based teaching or school materials.
According to the government, these schools should be eventually absorbed into government
schools. However, the degree and frequency at which this happens is not known and needs to be
assessed.
7.
As the table below shows, there were low GERs before the start of the civil conflict and
higher values after the end of the conflict for all levels up to the senior high. The GER values are
particularly high for the pre-primary and primary levels. The two main reasons for the high
values are the increasing demand for education and the fact that many who may have started
school at the ‘official’ age have had to resume again after a long absence while some others
might have never had the chance to start school because of the conflict.
Table 11: Gross Enrollment Ratios – 1981, 1984 and 2007/08
1981/82
1984/85
2007/08
Pre-primary
38%
37%
141%
Primary
53%
45%
94%
Primary + ALP
108%
Junior High School
28%
29%
43%
Senior High School
20%
21%
24%
Secondary
24%
25%
33%
Source: MOE – Final Report of the 1984 National Policy Conference on Education and Training and National School Census Data 2007/08
8.
Given that in Liberia almost all individuals start their education late as a result of missed
schooling opportunities during the war or because of entrance examinations that keep children in
pre-primary when their age mandates that they should be in primary, a significant percentage of
pupils in school are above the official primary school age. The net enrollment ratios (NER), as
noted in the table below, highlight the significance of this problem.
Table 12: Net Enrollment Ratios – 2005/06 and 2007/08
NER
2005/06
2007/08
Pre-Primary
31%
38%
Primary
36%
35%
Junior High School
5%
5%
Senior High School
3%
5%
Secondary School
4%
5%
Source: MOE – National School Census Data 2005/06 and 2007/08
9.
About 5.5 percent of those of the official age (6 years) are to be found in grade 1, while
93 percent are above the official primary school age. Overall, just 37 percent of those in primary
school are of the official age while approximately 12 percent of those in junior high school are of
the official age. The two charts below show the distribution of students in primary and junior
high schools by age.
Figure 1: Distribution of Students in Primary Schools by Age – Official Age Range 6 – 11 Years
16.0%
14.0%
12.0%
10.0%
8.0%
6.0%
4.0%
2.0%
0.0%
G1 %
G2 %
G3 %
G4 %
G5 %
G6 %
Source: MOE – National School Census Report 2007/08
Figure 2: Distribution of Students in Junior High Schools by Age – Official Age Range 12 – 14
Years
20.0%
G7%
G8%
G9%
JHS%
15.0%
10.0%
5.0%
0.0%
< 13
13
14
15
16
17
18
19
20
Above
20
Source: MOE – National School Census Report 2007/08
10.
The decrease in NER in moving from the primary to the secondary level indicates that
those of the official age decrease in number as the schooling ladder is ascended. This is not only
due to the ‘over-age students’ factor mentioned earlier, but also to the fact that student numbers
decrease as the schooling ladder is ascended, i.e., many appear to end their schooling below the
secondary level. Financial and accessibility considerations aside, the latter may be partly due to
the fact that a number of students are already over 18 years by the time they complete primary
education. This suggests that more attention needs to be paid to getting students into school at
the right age and keeping them in school.
Disparities in Access to Schooling and Completion Rates
11.
Disparities can be found in all levels of education. Due to lack of resources or availability
of schools, many lack the opportunity to attend school. As the 2007 DHS for Liberia notes, “56
percent of females and 39 percent of males have never attended any school.” According to the
2007 CWIQ, 60 percent of 6-11-year-old boys are out of school compared to 63 percent of girls
of the same age. The table below shows the percentage of out-of-school children by age group.
Table 13: Percentage Out-Of-School Children by Age Group
Age (years)
6-11
12-14
15-17
Enrolled
37
75
81
Male
Out-of-school
63
25
19
Enrolled
40
78
75
Female
Out-of-school
60
22
25
Enrolled
38
77
78
Total
Out-of-school
62
23
22
Source: Liberia 2008 PEMFAR, World Bank based on 2007 CWIQ data
12.
GERs show marked differences between the two levels (primary and junior high levels)
for every county as noted in the chart below. Further, at each level, large differences are to be
found between many counties. Access to junior high schools is severely affected by the nonavailability of public schools and the fact that private schools lack places or the cost of the
private schooling is such that parents cannot afford to send their children.
Figure 3: Primary and Junior High School GER Values of Liberian Counties
150%
Pri…
JHS
100%
50%
0%
Source: Data from 2007/08 School Census
13.
Only two or three schools for the blind and deaf exist in the whole of Liberia and no
schools for the mentally challenged. No school in Liberia has been constructed with special
needs children in mind. Given the stigma attached to disability and the lack of needed facilities,
special needs children are under-represented in schools.
14.
Given the number of special needs children as noted in the table below, EFA and MDG 2
cannot be achieved unless the necessary provisions are made, the stigma associated with
disability is reduced and more parents/guardians are persuaded to send all their children to
school. The civil conflict in Liberia created many orphans who have moved to the capital city.
Added to their number are the many former child soldiers who for a variety of reasons cannot
return to their homes. Some have been able to access skills training programs while a few others
have been able to sponsor themselves and gain access to formal schooling. The great majority
struggle to survive and pay scant attention to schooling. In order to get a better sense of the
problem with these segments of the out-of-school population, it is necessary to get better data on
their numbers and barriers to accessing education in order to devise a strategy.
Table 14: Percentage of Enrolled Primary Students with Reported Disabilities by County
County
Bomi
Bong
Grand Bassa
Grand Cape Mount
Grand Gedeh
Grand Kru
Lofa
Margibi
Maryland
Montserrado
Nimba
River Cess
Sinoe
River Gee
Gbarpolu
National
% of Enrolled with Disability
0.35%
0.65%
0.24%
0.53%
0.40%
1.49%
1.33%
0.22%
0.47%
0.33%
0.83%
0.40%
1.28%
1.49%
0.28%
0.59%
15.
The completion rate values are low for every level and both sexes as noted in the table
below. With fewer students attaining successive levels and with the dropping out that occurs at
each level, the completion rate becomes smaller with movement up the schooling ladder. The
very large difference between the completion rate for the primary level and that for the junior
high school level is an indication of a systemic problem that requires attention. Also, the low
completion rate for females at the secondary level needs to be looked at in order to achieve
greater gender parity. Achievement of the EFA and MDGs of 100 percent primary completion
by 2015 will be a big challenge, even though the present primary level GCR of 62 percent is
much higher compared to the 2000 estimate of 21 percent.
Table 15: 2007-08 Proxy Completion Rates for the Primary, Junior High and Senior High School Levels
Level
Primary
Junior High School
Senior High School
Male
67%
40%
25%
Female
57%
30%
18%
Both
62%
35%
21%
Tertiary Education
16.
Until the 1970s, higher education in Liberia was largely provided by the University of
Liberia, founded in 1862 as the Liberia College, and Cuttington University, founded in 1889 and
known as Cuttington University College until fairly recently. Some of the institutions established
after the aforementioned two have now acquired university status although the University of
Liberia and Cuttington University remain the only graduate-degree-awarding establishments. In
recent times, the tertiary education situation in Liberia has been complicated by the fact that,
during and immediately after the end of the civil conflict, many charters to establish diploma and
degree-awarding institutions were unwisely awarded. The consequence has been the offering of
sub-standard education in a number of ‘tertiary’ institutions. The National Commission for
Higher Education (NCHE) is currently in the process of closing some of the worst offenders.
Presently, the institutions recognized by the NCHE as providing tertiary education are the
following:
Table 16: Graduate Degree Granting Institutions, Enrollment and Faculty - 2007/08
Institution
University of Liberia
Cuttington University
Enrollment
Male
Female
Total
Capitol Hill, Monrovia Public Graduate 11,827
3,729
15,556
Suakoko, Bong County Private Graduate 1,129
817
1,946
12,956
4,546
17,502
TOTAL
Source: National Commission for Higher Education Secretariat
Location
Type
Level
Male
178
75
253
Faculty
Female Total
11
189
8
83
19
272
Table 17: Undergraduate Degree Granting Institutions, Enrollment and Faculty - 2007/08
Institution
Location
United Methodist
University (UMU)
AME Zion University
College
Stella Maris Polytechnic
Liberia Baptist
Theological Seminary
W.V.S. Tubman
Technical College
African Methodist
Episcopal University
Enrollment
Female Total
Faculty
Female Total
Type
Level
Monrovia
Private
Under Graduate
899
841
1,740
119
8
127
Monrovia
Monrovia
Roberts Field
Highway
Maryland
County
Private
Private
Under Graduate
Under Graduate
980
1,276
420
708
1,400
1,984
73
107
1
12
74
119
Private
Under Graduate
134
22
156
50
4
54
Public
Under Graduate
4
29
70
444
Male
Male
NON-OPERATIONAL
Monrovia
Private Under Graduate 2,116
1,140
3,256
5,405
3,131
8,536
TOTAL
Source: National Commission for Higher Education Secretariat
66
415
Table 18: Associate Degree Granting Institutions, Enrollment and Faculty - 2007/08
Enrollment
Female Total
4
43
5
60
Male
17
17
Faculty
Female
0
2
Total
17
19
45
15
2
17
29
160
21
1
22
130
573
703
118
16
134
Associate
34
7
41
19
0
19
Private
Associate
149
350
499
23
7
30
Private
Private
Associate
Associate
15
-
65
-
80
0
18
5
1
1
19
6
13
17
283
3
0
33
16
17
316
Institution
Location
Type
Level
Wesleyan Bible College
Trinity Bible College
Paynesville
Harbel
Roberts
Field
Highway
Private
Private
Associate
Associate
Male
39
55
Private
Associate
35
10
Monrovia
Private
Associate
131
Monrovia
Private
Associate
Monrovia
Private
Monrovia
Monrovia
Monrovia
Monrovia Bible College(MBC)
Lincoln College Professional
Studies
Liberia Assembly of God Bible
College
West Africa School of Mission
Theology
Smythe Institute of
Management & Technology
Morris Community College &
Airline Studies
Jake Memorial Bible College
Leigh- Sherman Community
College
Christian Theological Seminary
Monrovia
Private
Associate
96
16
112
Monrovia
Private
Associate
0
684
1,059
1,743
TOTAL
Source: National Commission for Higher Education Secretariat
Table 19: Diploma/Certificate Granting Institutions, Enrollment and Faculty - 2007/08
Institution
LICOSSES Mobile
Teacher Training
Institute
Free Pentecostal Bible
Institution
International College of
Business & Technology
Liberia Bible Institute
Location
Type
Level
Monrovia
Private
Diploma/Certificate
Voinjama
Private
Diploma/Certificate
Male
Enrollment
Female
Total
Male
Faculty
Female
Total
-
0
-
-
0
1
13
4
0
4
Monrovia Private Diploma/Certificate
131
29
160
Monrovia Private Diploma/Certificate
0
143
30
173
TOTAL
Source: National Commission for Higher Education Secretariat
21
25
1
1
22
0
26
12
17.
Ten out of the 23 entities, i.e. almost 50 percent, recognized by the NCHE as institutions
of higher learning are seminaries/bible colleges. Approximately 60 percent of all students
enrolled in the eight institutions awarding a bachelor’s degree or above are to be found at the
University of Liberia. The University of Liberia still accounts for approximately 56 percent of
the total student body. This means that, in 2007/2008, the University of Liberia had more
students enrolled than all the other tertiary level institutions combined. The table below shows
the enrollment figures for the University of Liberia.
Table 20: University of Liberia Student Numbers 1985, 1987 and 2007
University of Liberia
1985
2,998
Enrollment
1987
2007
4,073 15,556
Ave Annual Enrollment Growth
1985-87
1987-2007
18%
14%
Source: MOE – 1988 Liberia Education and Human Resources Sector Assessment and National Commission for Higher
Education Secretariat
18.
The University of Liberia accounts for approximately 18 percent of faculty in institutions
recognized by the NCHE and has the highest student to faculty ratio (82:1).
Teacher Training
19.
Presently, teacher training occurs either at the university level or through pre-service or
in-service training programs. USAID is currently the main donor for teacher training although
the EU plans on providing support for in-service teacher training in the counties where USAID is
not focusing.
20.
Four university-level institutions train teachers, but total enrollment in the teacher
training programs does not exceed 250 and the annual number of teachers graduated does not
exceed 40. The university-level teacher training institutions are supposed to train teachers largely
for the secondary level.
21.
Residential training of primary school teachers is largely carried out in two Rural Teacher
Training Institutes (RTTIs); one other RTTI is still being rehabilitated. All three RTTIs were
destroyed during the conflict which means that, for the past twenty years, the government has not
been turning out any new teachers. Therefore, many of the teachers who were trained before the
war and who have returned to the classroom are nearing retirement age without sufficient
numbers of newly trained teachers to replace them. Rehabilitation of two of these institutions
was completed in the third quarter of 2008 and, in November of the same year, they admitted
their first set of students since the late 1980s. The total enrollment of the two RTTIs now in
operation is 441. In June 2009, the first set of teachers with a ‘C’ certificate graduated from the
two institutions, the first time this event took place in Liberia in two decades. Another cohort
received their ‘C’ certificates in July 2010. As in the past, issues are being raised about the
quality of the intakes into the RTTIs and concerns expressed about the duration of the training
given the quality of the intake. Through support from USAID, there has been limited in-service
teacher training in 6 out of the 15 counties through a one-year training program aimed at the
many untrained teachers currently in the system. EU plans on training teachers in the nine
counties where USAID is currently not funding in-service teacher training.
22.
For both in and pre-service training, there have been problems with the quality of
candidates as many have not been able to meet the minimum qualifications for entrance into the
training. Similar to the lack of interest noted at the university level, the RTTIs seem to be unable
to attract enough qualified applicants, so much so that the two operational RTTIs are
underutilized. This inability to attract qualified candidates is especially marked in terms of
gender. The RTTIs, for reasons that have not been researched and fully understood, are unable
to attract female candidates.
23.
Given the large number of unqualified and sub-standard teachers in the system, the low
interest in teacher training at all levels, the limited capacity of the RTTIs, and the reluctance of
unqualified teachers with families teaching in the rural areas to enroll in residential programs, a
greater degree of synergy between the donor programs supporting teacher training needs to be
established in order to address these problems.
Technical and Vocational Education and Training (TVET)
24.
The control of TVET is largely under four main ministries: Education; Youth and Sports;
Agriculture; and Labor. On the whole, TVET faces many of the same problems as other areas of
the education sector: obsolete curriculum, dilapidated institutions/equipment, and lack of
properly trained instructors. A committee has been established with membership from all four
ministries in order to ensure coordination, cooperation, and maximization of use of available
resources. To a large extent, the goals of the committee have not been achieved.
25.
As is the case for higher education, reliable and useful data on TVET is unavailable, even
though UN estimates can be found. The available data shows that enrollment and the number of
institutions offering TVET has grown since the 1980s as shown in the table below.
Table 21: Number of TVET Institutions and Enrollment – 1982 and 2006
Year
1982
2006
No.
47
110
Enrollment
6,698
18,030
Source: MOE – 1984 National Policy Conference on Education and Training and the Situational Analysis of the Technical,
Vocational Education and Training (TVET) System in Liberia, 2006
26.
The information that is available shows a largely unregulated and fragmented system of
technical and vocational programs. The majority of these programs is provided by private
providers, as shown in the chart below, and is based on a short-term training approach designed
for the demobilization program that was undertaken after the war and not based on demand or
any coherent government-led strategy.
Figure 4: Distribution of TVET Institutions* by Proprietor – 2006
NGOs
16%
Mission
14%
GOL
16%
Private
54%
*Excludes schools which offer technical and/or vocational subjects as well as others
Source: MOE – The Situational Analysis of the Technical, Vocational Education and Training (TVET) System in Liberia, 2006
27.
With old mines reopening, new mines and industries being established, new hotels and
other infrastructure being constructed, the demand for individuals with needed
technical/vocational education/training is increasing and enrollment in institutions offering
TVET programs is expected to rise accordingly, that is, if the programs currently available match
the demand. Comprehensive, regular and reliable information on the labor market situation
would need to be provided by the government in order to formulate a TVET strategy for the
future. The World Bank is currently preparing a TVET project with the objective of linking skills
provision to employment.
Education Finance
Public Spending on Education - Aggregate Trends and Distribution across Levels
28.
It is estimated that since 2004, “average real spending for education has increased by
twenty six percent per year” (2008 PEMFAR) as shown in the figure below. Overall, the
expenditure on education in 2007/08 corresponded to approximately 2.9 percent of GDP.
Expenditure in Constant 1992
US$ millions
Figure 5: Total Public Spending on Education 2004/05 – 2007/08
16
14
12
10
8
6
4
2
0
Total Education Expenditure
2004/2005
2005/2006
Year
2006/2007
2007/2008
Source: Ministry of Finance, Annual Fiscal Reports - 2004/05, 2005/06, 2006/07 and 2007/08 as in 2007 PEMFAR
29.
In the 2007/08 financial year, the government spent a total of US$22,794,473 (13.6
percent) of its recurrent expenditure on education. This figure is below the FTI benchmark of 20
percent and that of many other Sub-Saharan countries as the chart below shows.
Figure 6: Public Recurrent Spending on Education of Selected Sub-Saharan Countries as a % of Total
Recurrent Public Spending
40.00
35.00
30.00
25.00
20.00
15.00
10.00
5.00
0.00
Source: World Bank Data
30.
The table below shows the distribution of public spending on education by level. Liberia
is seemingly giving due attention to primary education and, in doing so, is meeting the EFA
indicative target of approximately 50 percent of expenditures on primary education. Expenditure
on secondary education is still of concern as the percentage expenditure observed is due to the
adjustment upwards from 6 to 7 years of schooling and the contribution of expenditure for TVET
which is larger than for general secondary education alone. With the ongoing increase in
graduates from primary school, without increased expenditure at the secondary level, problems
will arise.
Table 22: Distribution of Public Spending on Education by Level after Adjustment to 6 Years Primary and 7
Years Secondary - 2007/08
Primary (+ Pre-Primary and Teacher Training)
Secondary (+ TVET)
Higher Education
50.60%
31.40%
18.00%
Source: Ministry of Education, Ministry of Finance and Budget Bureau
Household Spending
31.
Despite the fact that the government has nominally declared primary education free,
households still spend significant amounts of money on education relative to their earnings. The
table below shows the figures for public and household spending on education for 2007. Even
with ‘free’ primary education many parents still have to pay for uniforms, textbooks, copy
books/stationary, etc. In fact, private household expenditure on primary and secondary education
is much greater than government expenditure. For example, for 2006/07, the 2007 CWIQ total
private expenditure was US$27 million estimated while the total public expenditure was
US$12.2 million in 2007.
Table 23: Public and Household Spending on Education – 2007
Household
Spending
(US$ millions)
Government
Spending
(US$
millions)
Total
Spending
(US$
millions)
Primary Education
11.6
12
23.6
49%
Secondary Education
9.4
7
16.4
57%
Higher Education
6.0
4
10.4
58%
Total
27.0
23
50.4
Source: Estimates based on the 2007 CWIQ Survey
Share of
Financing by
Households (%)
54%
32.
The increase in enrollment in public schools has not been matched by an increase in
spaces and classrooms. This has contributed to over-crowding in public primary schools while
nearby private and mission schools might have spaces available which are not utilized. For those
parents who can afford to, they prefer to send their children to private institutions. In order to
make up for the loss of tuition income, the government has tried to institute a school grant
program that would allow for schools to receive cash to cover their running costs. However, the
government has had some difficulty in the past two years ensuring that the money reaches the
schools on time; therefore, the schools often turn to the parents for resources to keep the school
operational.
33.
At the secondary level, students in public junior high schools pay approximately US$8.50
per year, excluding examination and transcript fees which total less than US$2, while students at
the senior high school level pay approximately US$11 per year, excluding examination,
transcript and computer class fees which total approximately US$3. Private and faith-based
secondary schools typically charge much higher fees, with many in the US$120-150 per year
range.
34.
The table below shows private household expenditure in regard to education.
Households in all quintiles and in the rural and urban areas spend the bulk of their money for
education on uniforms and school fees. Apart from fees, uniforms and notebooks followed by
bags and textbooks account for the largest share of household expenditure. The suggestion is
that more has to be done to reduce the cost of education to parents if children from poor
households are not to be severely disadvantaged, and if the target of universal primary is to be
met not too long after 2015.
Table 24: Private Household Expenditure for All Levels of Education by Quintile and Expense Type – 2007
Residence Area
(% distribution)
Expenditure Item
Urban
30.8
0.3
3.7
0.1
1
9.3
4
1.2
0.8
6.5
School uniforms
Raincoats
School books
Files and file folders
Stationery for school
Notebooks
School bags and knapsacks
Other school material
Writing and drawing materials
School fees – pre-school
Rural
12.3
0.4
2.3
0.5
0.8
4.3
3.1
0.7
0.2
8.3
Quintile
(% distribution)
Q1
(Poorest)
30.4
0.4
4.1
0.2
0.5
8.2
3.3
0.7
0.5
6.3
Q2
28.4
0.3
2.7
0.3
1
8.7
4
1
0.6
6.4
Total
Q3
22.3
0.3
2.1
0.4
0.8
7.1
3.1
1.2
0.4
7.2
Q4
15.7
0.4
2.5
0.3
0.7
5.2
3.4
0.7
0.4
7.7
Q5 (Richest)
13.2
0.4
3.1
0.5
1.1
4.8
3.3
0.8
0.3
8.6
18.6
0.4
2.8
0.4
0.9
6
3.4
0.8
0.4
7.7
School fees – primary school
20.5
25.6
23.3
24.4
25.3
24.5
22.6
23.9
School fees - general secondary school
15.1
25.5
16.4
16.8
19.6
23.3
25
21.9
School fees – technical secondary school
1.2
1.1
1.4
1.4
1.6
1
0.9
School fees – higher education
4.4
13.4
3.9
3.7
7.7
12
13.9
Professional/vocational training fees
1.1
1.5
0.6
0.4
1
100
100
100
100
100
2
3.4
10.3
1.5
1.4
100
100
100
7.2
9.7
27
Share of education in total
household expenditure (in percent)
2.1
5.1
3.8
3.5
3.6
4.1
Source: Estimates based on the 2007 CWIQ Survey in WB PEMFAR 2008
2.9
3.4
Total percentage
Household expenditure on
education in $US millions
2.1
1.1
4.7
Personnel
35.
The table below shows the distribution of teaching and non-teaching staff by level
Table 25: Distribution of School Staff by Level - 2007/08
Level
Pre-Primary
Primary
Secondary
Higher Ed
All
Total No. of
Teachers
(including
volunteers,
civil
servants,
and private)
9469
9338
2034
804
Volunteers
4398
3449
373
88
%
Volunteers
Civil
servant
% Civil
Servant
NonTeacher
Civil
Servants
46%
37%
18%
11%
3396
4191
1250
570
36%
45%
61%
71%
973
1219
373
181
21645
8307
9407
2745
Source: Authors’ Estimates Based on Ministry of Education and Ministry of Finance Data
Total Staff
(incl.
Admin)
10,442
10,557
2,407
985
24391
36.
The MOE undertook some payroll cleaning in 2006. Based on this cleaning, the number
of ghost teachers was reduced, and some 697 un-cashed checks were recovered. However, this
exercise was incomplete. A further payroll cleaning exercise is currently being conducted by the
MOF.
37.
The proportion of administrative staff at all levels is relatively high with the tertiary level
having the highest. The proportion of non-teaching staff in pre-primary and primary are similar.
The non-teaching staff comprise workers in the county and district education offices; however, it
is not clear how many staff are located at the central level versus other levels. The proportion of
non-teaching staff in secondary education is higher than in primary and pre-primary mainly is
due to the staff in professional and technical schools. The proportion of non-teaching staff is the
highest at the tertiary level and is indicative of the lack of recruitment controls at this level.
38.
The table below shows the average annual teacher and non-teacher salaries for the
education sector.
Table 26: Average Annual Salaries of Teachers and Non-Teachers by Level and Salary Ratios - 2007/08
Ave Annual Salary (US$)
Ratios
Pre-Prim
Primary
Sec
Higher
Sec:Prim Higher:Prim
Non-Teachers
483
490
502
534
1.04
1.09
Teachers
568
576
590
627
1.04
1.09
Source: Authors’ Estimates Based on Ministry of Education and Ministry of Finance Data
Staff
39.
Volunteer teachers aside, all teachers in public institutions are employed on permanent
civil service terms. There is no provision for temporary or contract teachers, even for
unqualified teachers. The salary is based entirely on academic qualifications, with no variation
based on experience or performance on the job. At present, the teacher salary structure is very
flat with minimal differentiation between teachers with different qualifications. An unqualified
public primary school teacher with a high school certificate earns US$54.50 per month, while a
qualified teacher with a C certificate earns US$55 per month. A graduate teacher earns
US$57.75, only 5 percent more than a teacher with a C certificate. Non- teacher salaries are
lower than average teacher salaries. The ratio of average salary levels for secondary teachers
compared to primary teachers is only 1.04 to 1.
Quality of education is low
40.
Overall, as noted in the table below, students from the missionary schools have the best
EGRA test scores (51.3/100), followed by students from private schools (47.5/100). These
results give credence to the perception of many parents that private institutions are of higher
quality. Students from public and communities schools have similar scores (41/100). Given that
schools run by communities with limited, if any, support from the government have similar
scores to public schools, this raises serious doubts about the quality of teaching going on
government-funded schools. An analysis of the average score by gender shows that, on average,
boys perform slightly better (45.1/100) than girls (42.0/100).
Table 27: EGRA Scores by Grade
25% of the students
have less than …
50% of the students
have less than …
25% of the students
have more than …
Grade 2
30.3/100
38.9/100
50.2/100
Grade 3
35.4/100
47.1/100
58.8/100
Boys
33.0/100
44.8/100
55.7/100
Girls
31.7/100
40.3/100
54.3/100
Public
31.2/100
39.8/100
51.6/100
Private
34.8/100
46.6/100
57.5/100
Mission
44.8/100
54.6/100
65.6/100
Community
29.9/100
39.8/100
54.7/100
41.
The percentage of success on the WAEC test, administered at the end of primary school,
varies according to the type of school. Students from private schools have the highest percentage
of success (88.8 percent), followed by students from mission schools (88.2 percent). The next
best category consists of students from community schools (84.0 percent). Students from public
schools have the lowest percentage of success (80.0 percent).
Education Management
42.
Liberia operates a relatively decentralized education system consisting of the central
ministry, 15 County Education Offices and 86 district levels. The MOE is responsible for
planning and implementing national education policies and strategies, including developing
financing plans and budgets. The MOE is headed by a minister of education who is responsible
for the overall administration and management of education and training. The minister is
assisted by three deputy ministers responsible for administration, instruction, and planning and
development. In addition, the MOE coordinates the work of the county and district offices and
has overall responsibility for basic education, facilities planning and construction, textbook
procurement and distribution and certification of private schools.
43.
On the whole, the Ministry suffers from weak management capacity, especially at the
middle management level which is the vital link to make sure that policy decisions taken by
senior management are related and implemented by those at the lower levels. In addition, most
personnel lack clear job descriptions and therefore have a limited understanding of how they fit
into the overall framework and what duties they are to perform on a day-to-day basis; this is
especially true for the decentralized levels. This lack of clear job descriptions also makes it
difficult to effectively supervise employees.
44.
Each of the county education offices is headed by a county education officer (CEO) and
staffed with a small team of support staff. However, as mentioned in the preceding paragraph,
CEOs do not have a clear understanding of their functions and therefore cannot perform their
supervisory role effectively. This trickles down to the district education officers (DEOs) who
also have limited understanding of their job functions, visit schools irregularly, and when they do
visit do so mainly to perform ‘inspections’ and not to offer pedagogical support. Schools are not
supervised, therefore, and implementation of programs is insufficiently monitored. Information
on school performance is not systematically collected and the impact of interventions addressing
access and quality are not assessed. Despite the decentralized structure, as with other government
ministries, resources and management remained highly centralized prior to and during Liberia’s
14 years of conflict. To date, this is still the reality.
45.
Unlike neighboring countries where school management committees (SMCs) play a
significant role in education management, in Liberia these mechanisms are very weak. Although
the education law mandates that each school have a Parent-Teacher Association (PTA), these
associations usually do not exist or, if they do exist, they do so in name only. This is most likely
due to the dissolution of any PTAs that did exist during the war but also might be a function of
several other factors relating to the war’s impact on community cohesion.
46.
With EU support, a management and functional review will be carried out in 2010. The
review will assess the MOE’s core functions in terms of its ability to facilitate the delivery of
education services. The review will also set out organizational development, human resources,
and decentralization policies. Heading the review process will be an internal reform committee.
47.
One clear challenge is the lack of effective flow of information and data from the school
and local levels to the central ministry. Restricted access to information severely limits the
Ministry’s ability to plan responsive and relevant policies. Three national school censuses have
been carried out since the end of the civil war and the report of the latest census was produced in
October 2008. From pre-primary to secondary levels and including the ALP, the report sets out
information on the number, size and distribution of schools, pupil enrollments (including those
with disabilities), teachers and their qualifications, and textbook availability. With EU financing,
support will be provided to increase the value of the EMIS by improving information availability
and accessibility, widening the scope of information provided and strengthening information
management. The idea is to organize the collection of routine data through the monitoring and
evaluation (M&E) system, which will lessen EMIS dependence on the current school census.
This approach will be piloted in 6 counties in 2010.
Annex 2: Major Related Projects Financed by the Bank and/or Agencies
LIBERIA: Fast Track Initiative Grant for Basic Education
Donors to the sector include WFP, USAID, EU, OSI/Soros Foundation, UNICEF, UNESCO, and
the World Bank.
Key Partners in Education*
Development
Partner
EU
Areas of Support
Amount
capacity building, support to primary
education
capacity building, technical assistance,
teacher development, civil society support
reconstruction support to the Education
System
basic education, gender equality
US$18.8 million
US$60 million
WB
ALP, skills building and work-readiness for
youth, teacher training, participant training
and institutional capacity development,
EGRA, textbooks, adult literacy, higher
education
basic education, vocational training
US$7million
WFP
school feeding
US$30 million
OSI
UNESCO
UNICEF
USAID
Total
*These figures include TA costs
US$0.75million
US$2.1 million
US$8.4 million
US$127.05 million
Duration
20102012
2010
20102012
20102012
20102012
20102012
20102011
Annex 3: Results Framework and Monitoring
LIBERIA: Fast Track Initiative Grant for Basic Education
PDO
Project Outcome Indicators
Use of Project Outcome Information
Project Development Objective: To increase access to basic education with a particular focus on poor areas, to improve conditions of teaching
and learning, and to improve school management and accountability.
A. Increased access to basic
1. Basic education completion rate (%)*
Ensure that children entering basic education (primary and
education in targeted poor
junior secondary school) are completing school on time.
areas
2. Direct project beneficiaries (number) – of which
female (%) (Core Indicator)
- Students enrolled in schools constructed in targeted
areas
- Students benefitting from school grants
B. Improved conditions of
3. Textbooks- Student Ratio at basic education level
Ascertain that students have adequate access to textbooks.
teaching and learning
(defined as number of textbooks aligned with new
curriculum to students)
4. Teachers having at least one teaching guide (%)
Ensure that teachers benefit from adequate support
materials to facilitate classroom teaching
C. Improved school
5. Schools managed by a SMC or PTA (%)
Ascertain the establishment of a SMC or PTA in schools
management and
accountability functions
6. School grants implemented in accordance with
Verify that school grants are used adequately.
agreed upon procedures (%)
Intermediate Outcomes
Intermediate Outcome and Output Indicators
Use of Intermediate Outcome Monitoring
Additional classrooms at the
7. Number of additional classrooms built or
Verify that classrooms are being constructed in relation to
basic education level
rehabilitated at the basic education level resulting from the overall need
project intervention (number) (Core Indicator)
Early Childhood Development
strategy strengthened
Improved health of school
children in targeted area
Strengthened personnel
management and new
assessment tools developed
and used
8. Cost-effective Early Childhood Development model
designed and piloted (yes/no)
9. Children benefiting from de-worming interventions
(number)
10. Unified HR database (Civil Service Agency,
MOE, MOF) developed and maintained (yes/no)
11. Development of a pay and grade scale for
teachers (yes/no)
52
Assess the effectiveness of the models proposed and
tested
Monitor the implementation of deworming campaigns
Ensure the effective management of education personnel
Ascertain the availability of job descriptions and
development of a pay and grade scale
12. Availability of annual sector statistics by May of
each year (yes/no)
13. System for learning assessment at the primary
level (rating scale) (Core Indicator)
14. DEOs using the new assessment instruments (%)
Ensure the availability of updated education statistics
Ensure the availability of a reliable and valid test to assess
student learning
Assess strengths and weaknesses of instruments as they
are applied in schools
* The “basic education completion rate” is arrived at by averaging the primary and junior secondary completion rates.
The following indicator will be tracked over time but will not be considered a performance indicator of the project: At least 25%
improvement in connected text reading fluency, measured as correct words per minute in a passage of appropriate difficulty (grades 2
and 3)
53
LIBERIA: Fast Track Initiative Grant for Basic Education Project
Activities/ Outputs
Intermediate Outcomes/ Indicators
Outcomes/
Higher level
Outcomes
A.1 Hiring Teaching Staff
A. Adequate Number of Teaching Staff
A.2 Providing Incentives for Teaching Staff to Locate in
Disadvantaged Areas
B.1 Building/Rehabilitating Facilities
B. Adequate Infrastructure and Facilities
1. Increased Access (enrollment)
and Equity in Basic Education
7.Number of additional classrooms built at the basic
education level resulting from the project intervention (Core)
C.1 Providing Financial Support /Incentives to
Disadvantaged Students
C. Increased Use of Incentives among Disadvantaged
Students
D.1 Training Teaching Staff
D. More Qualified Teaching Staff
1.Basic education completion rate (%)
2. Direct project beneficiaries (number),
of which female (%)
(i) Students enrolled in schools
constructed in target areas
(ii) Students benefiting from schools
grants
Improved Student
Learning
8. Improvement in
connected text
reading fluency
E.1 Developing/Reviewing Curriculum
E.2 Strengthening Pedagogy-Teaching Methods
E. Improved conditions for teaching and learning
- Teaching guides developed (number)
- Teaching guides distributed (number)
3. Textbook- student ratio at basic education lelvel
4. Teachers having at least one teaching guide (%)
E.3 Purchasing and distributing Learning Materials
- Textbooks purchased and distributed (number)
F.1 Establishment of Community Participation in
School Management
- Guidelines established that encourage community
participation in school management (yes/no)
- Community representatives trained to participate in
school management committees (number)
F. Improved School Management and Accountability
functions
5. Schools managed by a SMC or PTA (%)
6. School grants implemented in acordance with agreed
upon procedures (%)
F.2 Strengthen School Grant Mechanisms
- Procedures developed including allocation criteria,
financial management rules etc. (yes/no)
- Staff trained in strategic planning, budgeting, reporting,
etc. (number).
- School inspectors trained (number)
G.1 Strengthen monitoring mechanisms
- New school level assesment instruments developed
(yes/no)
- National assessment test for grades 4 and 7 developed
(yes/no)
- Staff trained in monitoring and tracking school level data
(number)
G.2 Strengthen personnel and payroll management
11. Unified HR database (Civil Service Agency, MOE
MOR) developed (yes/no)
12.Development of a pay and grade scale for teachers
(yes/no)
- Staff trained in monitoring and tracking school level data
(number)
G. Improved Primary Eduaction Sector HR
Management and Monitoring
HR Management
11. Unified HR database (Civil Service Agency, MOE MOR)
maintained (yes/no)
Monitoring
13. Availability of annual sector statistics by May of each
year (yes/no)
14. Learning Assessment System in place (yes/no) +
(score 0-4) CORE
15. DEOs using the new assessment instruments (%)
H.1 Distribute deworming drugs and life-skills material
H. Improved Management of Health Issues at School
Level
- Learning material (life-skills student modules) developed
(yes/no)
- Deworming program established
10. Children benefiting from deworming
(number)
54
2. Improved Quality (completion) of
Basic Education
Arrangement for results monitoring
Institutional Issues: Over the past three years, the EMIS team under the MOE’s Planning
Department has been administering a school census and inputting the data into the EMIS with
support from donor partners and LISGIS, the national statistics institute. Presently, the MOE is
using the school survey data to guide its future planning; however, one of the issues with this
method has been the timely cleaning and analysis of the data. In light of this, the Ministry has
been discussing replacing this yearly survey with a regularized school reporting system in the
hopes that this will allow for the collection of more timely and accurate information. The EU and
UNESCO are currently collaborating with the MOE on this in order to build the capacity of the
Ministry to carry out this data collection. EU will be performing a management and functional
review that will take into consideration the present quality assurance, monitoring and evaluation,
and EMIS capacities. The outputs of this review will include a baseline report and an
implementation plan for EMIS which will include drafting guidelines for the compilation of
yearly education statistics.
The Project and Intermediate Outcome Indicators will be included in the set of indicators
selected by the Ministry for yearly data collection. The Senior Management Team of the
Ministry will need to ensure the timely reporting of this data in order to provide for effective
management of the project and to ensure that development outcomes are being obtained. These
indicators will also form part of the progress indicators for oversight of the ESP which will be
assessed at the annual education sector reviews. Therefore, this information should be available
in order for the Ministry to assess performance under the project and design course corrections
where necessary.
Capacity: County and district education officers will be trained to oversee the collection of this
data at the local level, and will then report the data to MOE HQ. The HQ will be responsible for
cleaning and timely analysis of data as well as reporting to partners.
55
Arrangements for Results Monitoring
Project Outcome Indicators
Baseline
2008 unless
noted
Year 1
Year 2
49%
52%
54%
0
0
Year 3
Frequency and
Reports
Data Collection
Instruments
Responsibility for Data
Collection
Annual
MOE report
MOE
Planning Dept
Annual
Quarterly project
reports
MOE Planning Dept
1. Basic education completion rate (%)
2. Direct project beneficiaries (number) – of
which female (%) (Core Indicator)
- Students enrolled in schools constructed
in targeted areas
- Students benefiting from school grants
3. Textbooks- Student Ratio at basic
education level (defined as number of
textbooks aligned with new curriculum to
students)
150,000
56%
470,000
Instruction Department
0
0:0
1:2
1:2
Annual
Audit report
DEOs
Schools
Independent auditor
4. Teachers having at least one teaching
guide (%)
Instruction Department
0
0
50%
80%
Annual
Audit report
DEO report
DEOs
Schools
Independent auditor
5. Schools managed by a SMC or PTA (%)
Instruction/Administration
Departments
0
20%
40%
60%
Annual
School Audit
report
DEOs
CSBs
Schools
Independent auditor
56
6. School grants implemented in accordance
with agreed upon procedures (%)
Instruction/Administration
Departments
0
10%
30%
60%
Annual
School Audit
report
DEOs
CSBs
Schools
Independent auditor
57
Component 1: Increasing access and equity in rural areas
Intermediate Outcome and Output
Indicators
7. Number of additional classrooms built
or rehabilitated at the basic education
level resulting from project intervention
(number) (Core Indicator)
Baseline
0
Year 1
0
Year 2
Year 3
Frequency and
Reports
Data Collection
Instruments
Responsibility for Data
Collection
164
108
Semi- Annual
Sector Report
Planning Dept
Component 2: Improving conditions of teaching and learning
Intermediate Outcome Indicators
8. Cost-effective Early Childhood
Development model designed and piloted
(yes/no)
9. Children benefiting from de-worming
interventions (number)
Baseline
No
0
Year 1
Year 2
Year 3
Frequency and
Reports
Data Collection
Instruments
Responsibility for Data
Collection
No
Yes
Yes
Annual
MOE report
Planning and Instruction
Depts
Bi-Annual
Report from
school health
department
300,000
----
300,000
(biannual intervention)
MOE/MoHealth
Audit report
Component 3: Strengthening central and local levels to operate in a decentralized education system by developing management and monitoring and
evaluation capacities.
Intermediate Outcome Indicators
10. Unified HR database (Civil Service
Agency, MOE, MOF) developed and
maintained (yes/no)
11. Development of a pay and grade scale
for teachers (yes/no)
Baseline
Year 1
Year 2
Year 3
Frequency and
Reports
Data Collection
Instruments
Responsibility for Data
Collection
No
Yes
Yes
Yes
Annual
Sector report
Dept. of
Administration/CSA/
MOF
No
Yes
Yes
58
Yes
Annual
HR report
Admin. Department/HR
CSA, MOF
Sector Repor
report
12. Availability of annual sector
statistics by May of each year (yes/no)
13. System for learning assessment at the
primary level (rating scale) (Core
Indicator)
No
Yes
Yes
Yes
Annual
School census
report
Planning Dept
No
No
Yes
Yes
Annual
School census
report
WAEC/Dept of
instruction
Sector report
Dept. of Instruction and
Planning
DEOs
Schools
14. DEOs using the new assessment
instruments (%)
0
30%
50%
(for example: early grade reading and
math assessments)
DEOs = District Education Officers (local staff providing pedagogic support to schools).
59
75%
Semi-Annual
Annex 4: Detailed Project Description
LIBERIA: Fast Track Initiative Grant for Basic Education
1.
The CF Development Objective is to increase access to basic education with a particular
focus on poor areas, to improve conditions of teaching and learning, and to improve school
management and accountability.
2.
The CF’s objective is in line with the ESP’s objectives. The continued relevance and
implementation status of activities financed under the CF will be monitored and any perceived
need to modify will be agreed during the joint annual sector reviews.
3. The components have been identified to help attain the CF objective, including:
Component 1: Increasing access and equity in rural areas (US$15.5 million)
Component 2: Improving the conditions of teaching and learning (US$14 million)
Component 3: Strengthening central and local levels to operate in a decentralized education
system by developing management and monitoring and evaluation capacities (US$10.5 million)
Choice and selection of interventions
4.
The focus is on increasing access to basic education by constructing schools. Currently,
the approach to school construction is ad hoc and not based on extensive school mapping and
needs assessment. Therefore there is a need to develop a coherent infrastructure strategy and
build the capacity of the MOE to implement the strategy while at the same time constructing
schools. These priority interventions were all noted at the 2009 Education Sector Review and
are aligned with the government’s key strategies listed in the ESP to “rehabilitate and construct
furnished primary schools prioritizing communities lacking in schools”.
5.
As Liberia still faces considerable challenges in addressing access to educational
opportunities, especially in rural areas, the CF will prioritize addressing access and equity
(component 1) and increasing management capacity (component 3) which will lay the foundation
for addressing learning outcomes. Without the required fundamental educational inputs (i.e.
schools, textbooks, teachers), it is impossible to focus on improving learning outcomes within
three years. UNESCO has provided support for developing a new curriculum and textbooks have
recently been purchased under the pooled fund, which are aligned with the old curriculum. In
light of this, under component 2 of the CF, several interventions are planned to provide
educational inputs (textbooks and school grants) but also to look at ECD and school health to
help create a firmer foundation for improving learning outcomes. Currently, USAID is focusing
the bulk of their support on teacher training and professional development. Therefore,
Component 3 will support the strengthening of a monitoring and evaluation system.
Component 1: Increasing access and equity in rural areas (US$15.5 million)
Challenge
60
6.
The civil war that devastated the country from 1989-2003 caused the education system to
break down: schools were destroyed during the fighting or left derelict for so long that they
require replacement or extensive rehabilitation, and teachers and those with education system
management experience fled, often abroad. CWIQ estimates for 2007 indicate that 63 percent of
children aged 6-11 were not in school at the time. In 2006, a free primary education program
was launched and enrollment figures increased; however, significant challenges remain largely
due to the lack of infrastructure and a dearth of trained teachers. Of the 539,887 primary school
students, one-third attends schools in Montserrado, the capital city. In Liberia, location
disparities are greater than gender disparities. At present, public schools account for 57 percent
of the enrolled primary student population while private and mission schools account for 30
percent and community schools account for 13 percent.
7.
In addition, during the 14 years of civil war, many children were prevented from going to
school. As a result, the majority of children in primary school are above the official age of 6-11,
even though some provision has been for accommodating these youth in a
condensed/compressed program referred to as ALP. This program is largely funded by donors.
More efforts need to be made therefore to get children of the official age into primary school and
those outside of the official age limits to their appropriate level. This should be done by
enrolling them in an accelerated learning program if they are significantly older than the primary
school age limits and by abolishing the entrance examinations that are keeping children in preprimary classes when they should be in primary schools.
8.
Despite the abolition of school fees at the primary school level, household spending on
education is almost equal to that of government spending. Uniforms account for the highest
percentage of household expenditure on education in urban areas and school fees account for the
largest expenditure for rural primary school learners. The large amount spent on school fees,
despite the school fee abolition policy, implies that either public schools still charge fees or that
parents elect to send their children to private school and therefore are still paying fees.
Strategy
9.
The government’s strategy is to ensure that all children (especially girls, individuals with
special needs, street children, children with “manageable” emotional behavioural disorders and
learning disabilities) start school at the right age and complete basic education of an acceptable
quality. This would be done through the rehabilitation and construction of classrooms focusing
on underserved communities, implementation of a school fee abolition policy, recruiting a
greater number of teachers, especially female teachers, and providing improved training
opportunities for current teachers, and introduction of a ‘special circumstances’ scholarship.
The CF will finance:
10.
Construction of schools. The majority of the financing under this component will go
towards constructing schools in rural areas. The construction will entail: construction by
contractors of up to 24 primary schools comprising 6 classrooms, administration facilities,
latrines and water points; the construction by contractors of up to 20 junior secondary schools;
and the construction by communities of up to 16 primary schools with three classrooms in hardto-reach areas of the country. The construction program outlined in the ESP calls for 453 new
61
classrooms a year at the primary school level. This level of construction is feasible given the
rhythm of construction of more than 500 classrooms a year achieved over the past few years,
combined with a priority being given to community-based contracting for construction in rural
and hard-to-reach areas. The CF will finance this activity in parallel with EU (18 schools) and
the government’s own investment budget (10 schools, 60 classrooms).
11.
Under the existing Education Pooled Fund (EPF), the school construction activities were
managed by contract management agencies. After a review of the agencies’ implementation of
the construction program, it has become evident that the agencies are not providing adequate
supervision of the work. At present, they seem to consider that their role is only to report on
progress at the sites. This seems to be an endemic problem that affects all construction projects
in Liberia. There has been very little construction of any type in the country for the last 25 years.
Consequently, only a handful of Liberian architects and engineers possess the experience of
constructing buildings to an acceptable standard. The few who have the desired experience are
unlikely to have the capacity to take on additional construction work. It is proposed therefore
that a qualified firm of civil works consultants be contracted to manage and supervise the
construction of the proposed FTI school-building program in collaboration with local Liberian
firms, where possible (see more details in Annex 6: Institutional Arrangements).
12.
The Division of Education Facilities (DEF) in the MOE will be in charge of the norms
and standards of school construction and the supervision of the construction program in
conjunction with the firm to be recruited under the CF. The school designs exist but will be
adjusted to consider the needs of children with disabilities. For the hard-to-reach areas, a CDD
approach is proposed. During the selection process, 16 remote villages with difficult access and
only sufficient primary school age children for a three-classroom primary school (i.e. below 132
children aged 6 to 11) will be selected for a pilot program of community-based primary school
construction. Part of the selection process will be the discussion with community members in
the selected villages of the communities’ responsibilities with regard to the construction and
maintenance of the schools and only those communities who agree to fulfill these responsibilities
will be included in the CF. Before the schools are constructed, the MOE will have to ensure the
availability of teachers for the school, especially in light of the fact that teacher deployment and
retention to rural areas is a problem.
13.
The civil works firm and the director of the DEF will coordinate with the procurement
officer as well as the financial comptroller in the Department of Administration in the MOE to
ensure all activities are conducted according to World Bank procedures. The DEF (with the
assistance of the civil works firm) will be responsible for developing standard plans for primary
and lower secondary school construction. These standards will also incorporate modifications to
accommodate children with disabilities. In addition, the DEF and the civil works firm will
monitor and supervise all construction and write a summary report on a quarterly basis. The
Department of Planning and the Minister of Education will be responsible for selecting the
school sites based on the EMIS and school mapping. The Environmental Protection Agency
(EPA) will be consulted to ensure that all safeguards issues are addressed (environmental impact
and resettlement policy framework).
Component 2: Improving the conditions of teaching and learning (US$14 million)
62
Challenge
14.
The quality of education is largely determined by the quality of teachers. Among the
22,253 primary school teachers, less than 50 percent are trained and, among the so-called trained
teachers, many received their training through the provision of a 3-6 weeks crash programs
organized by NGOs to keep the education system functioning in the short term. The teachers
from these crash training programs have contributed to keeping the system functioning, but in
the absence of any follow-up and additional training, the quality of their contribution does not
differ much from that of the untrained teachers in the system. In addition, volunteer teachers
who are often unpaid or paid by local communities make up a large segment of the current
teacher population.
15.
In terms of learning materials, after many years, textbooks have recently been procured,
bringing the national average pupil-textbook ratio to 2:1 from 27:1 in 2007. These textbooks are
linked to the old curriculum. The absence of support through monitoring and feedback during inservice training and/or learning renders the former of limited use. In addition, many Liberian
schools lack the most basic teaching/learning materials including chalk.
16.
Consultations with the local population around the ESP show that many equate ECD with
pre-primary schooling and not with a broader, inter-sectoral approach to providing for the needs
of children from conception to primary. To address this issue, the government is currently
preparing a National Inter-Sectoral Policy on ECD. Limited examples of cost-effective
community-based ECD provision exist in Liberia, although this model is expanding rapidly
across rural areas of Africa. Research has shown that investing in ECD improves the efficiency
and effectiveness of primary education. Providing young children with quality early learning
experiences helps them to transition to primary school at the right age and makes it more likely
that they complete primary education.
17.
The current pre-primary system does not address the needs of young children, but focuses
on preparing children over age 6 for entrance exams to grade one of primary school. There is no
specialized training for pre-primary teachers, almost half of whom are unpaid volunteers, no
minimum quality standards, and the curriculum is academic and teacher-directed. Supply is
concentrated in the urban areas, where a large unregulated private sub-sector of pre-primary
institutions exists. Although the GER is 141 percent, the net enrollment is 38 percent because the
majority of children are over the age of five.
18.
Poor health and nutritional status of children has a serious impact on their enrollment,
attendance and performance in school. Their health and nutritional status and their ability to be
taught and to learn are determined not only during their school years but also during fetal
development and in early childhood. For example, many school-aged children in Liberia are
infected with many different types of worms. It has been shown that children infected with
worms generally perform poorly in tests of cognitive function. Improving the performance of
the education sector is therefore dependent on the current and past health and nutritional status of
its student body.
63
19.
Another health-related concern is HIV/AIDS. According to the 2007 DHS report, 0.9
percent of 15-to 19-year-olds carry HIV. This is very worrisome, especially as about 33 percent
of students at primary school level are 15 years and older. An HIV/AIDS policy and strategic
plan have been developed for the education sector and its implementation is urgently needed in
order to minimize the possibility of an increase in the HIV/AIDS rate in the future.
Strategy
20.
The government’s strategy is to improve education quality and ensure greater efficiency
and cost effectiveness in basic education schooling. This will be done through the development of
a high-quality curriculum, ensuring the availability of teaching and learning materials including
textbooks in core subjects, improving the quality of teachers, enforcing a repetition policy,
raising awareness of HIV-AIDS including testing and sex education in the curriculum,
supporting child-friendly ECD programs with a focus on vulnerable and disadvantaged children,
and improving the quality and usefulness of assessment.
21.
The CF project would support the following:
22.
Provision of learning materials. Currently, USAID and EU are addressing the demands
for teacher training. Therefore the project will finance the supply of textbooks for students in
basic education (grades 5-9) and a set of teacher guides. The textbooks will be aligned with the
new curriculum and will be purchased through international competitive bidding. A total of
1,000,000 textbooks, and 20,000 guides would be purchased.
23.
Technical support to improve the implementation of school grants [subgrants given to
school]. This project will be used to finance activities that will help the government to improve
its current initiative. It will support technical assistance to assist in the development of school
grant guidelines including allocation criteria, financial management rules, and roles and
responsibilities of the stakeholders involved. The project will finance the scaling up of current
school grants based on a formula comprising school size and hardship (disadvantaged vs. more
well-off schools). The school grants will cover the operating costs of the schools and the average
school grant will be in the order of US$500-1,000 over a two-year period. UNICEF supported
the MOE with the development of a school fee abolition policy which addresses many of these
issues but is currently awaiting adoption and implementation. For the junior secondary schools,
a grant will be attributed using a different formula as the students are still paying school fees.
24.
The funds for the school grants will be released subject to (i) development of school grant
guidelines; and (ii) verification that at least 400 of the selected primary and junior secondary
schools have met the eligibility criteria to receive grants.
25.
Individual schools will be transferred the funds upon successful completion of a school
grant agreement including (a) opening of bank account, (b) the establishment of a school
management committee (SMC) and (c) the identification and training of staff to take up
responsibility for the management of funds transferred. The school grant agreement should
include: (i) that the grant be provided by MOE on a non-reimbursable grant basis; (ii) the
obligation of the school to carry out the grant in accordance with the School Grant Guidelines
and the PIM, as appropriate; (iii) the obligation of the school to maintain adequate records of
64
resources and expenditures, in accordance with sound accounting practices; (iv) the requirement
that goods, works and services to be financed from the proceeds of the grant will be procured by
the school in accordance with the procedures in the Grant Agreement and as further specified in
the School Subgrant Guidelines and the PIM; (v) the right of the MOE to inspect by itself, or
jointly with the World Bank, if the World Bank so requests, the goods, works and services
financed by the grant and any relevant related records and documents; (vi) the right of the MOE
to suspend or terminate the right of the school to use the proceeds of the grant upon the failure by
such school to perform any of its obligations under the school grant agreement; and (vii) the
obligation of the school to act in compliance with the Anti-Corruption Guidelines.
26.
Support to early childhood development. This activity will support the development of an
ECD strategy and strengthening of the system through the design and implementation of a costeffective ECD model for rural areas. The CF will support up to 10 community-based ECD
centers in upgraded rural markets and low-cost structures in villages through the provision of
equipment and play/learning materials, training for locally-recruited educators, and minor
renovations. Sites will be located in rural areas with strong community demand and sufficient
numbers of underserved 3-5 year old children. The CF also will assist other donor partners
(OSI/Soros, Plan International, UNESCO, Save the Children) involved in strengthening the ECD
system by supporting the development of quality standards and guidelines, child-centered
curriculum, and teacher training and certification frameworks.
27.
Support to school health. This activity will finance the development of learning materials
(life-skills student modules for grades 1-9 that will include health issues such as reproductive
health and waterborne diseases), training of teachers (3,000) and de-worming of 300,000 primary
students in eight counties (Bomi, Bong, Gbarpolu, Grand Bassa, Grand Cape Mount, Lofa,
Margibi, and Montserrado) that are not being covered by the other partners. The school health
department in the MOE will implement deworming in schools in counties that do not have an
NGO that is working in school health.
28.
A rapid appraisal of the eight counties will be undertaken to determine the location,
prevalence, and species of worms. This will be followed by the development or adaptation of
training materials, sensitization of the community and training of teachers to implement the deworming. The training will be conducted in stages, the first being a two-day training of 60
master trainers (4 from each county). This training will be provided with the help of some
technical assistance. These master trainers will train both district level trainers and the teachers
at the same time over a period of three days.
Component 3: Strengthening central and local levels to operate in a decentralized
education system by developing management and monitoring and evaluation capacities
(US$10.5 million).
Challenge
29.
Currently, the MOE does not have a formal decentralization policy as its main priority
has been on providing a minimum level of service provision. However, this lack of a
decentralization policy means that various levels of the education system are not aware of their
responsibilities. In addition, most personnel lack clear job descriptions and therefore have a
limited understanding of how they fit into the overall framework and what duties they are to
65
perform on a day-to-day basis; this is especially true for the local levels. This lack of clear job
descriptions also makes it difficult to effectively supervise employees.
30.
On the whole, the Ministry suffers from weak management capacity, especially at the
middle management level which is the vital link to make sure that policy decisions taken by
senior management are related and implemented by those at the lower levels. Numerous
capacity building interventions have taken place but in an ad hoc manner with limited attention
to what and how capacity has been transferred. In addition, with a lack of clarity on job
descriptions and responsibilities, it is difficult to adequately design capacity building programs.
31.
The paucity of monitoring visits to schools and an almost total absence of evaluations of
the findings from these visits contribute to weak quality of schools. DEOs collect little or no
data on the schools for which they are responsible and lack standardized reporting formats to
streamline reporting. When DEOs do visit schools, they have a limited understanding of what
information they are to collect and mainly focus on collecting figures and numbers and do not
report on the quality of teaching and learning going on in the schools.
32.
In addition, the governance structure in schools is not very clear. Many schools do not
have PTAs or SMCs at all or have barely functioning PTAs/SMCs even though they are required
by the Education Law. As a result, schools and their directors are not monitored and evaluated
regularly and there is limited parental and community involvement in school matters.
Strategy
33.
The government’s strategy is to develop the institutional capacity for management at
central, regional and local levels, and to increase planning and management capacity of the
Ministry of Education. This would be done through the implementation of the national civil
service reform strategies, strengthening planning and budgeting capacity and procedures,
strengthening of the current EMIS system, developing capacity and mechanisms for effective
monitoring, evaluation, and quality assurance, developing leadership capacity through shortterm and long-term professional development and training programs, empowering and training
County and District Education Officers to supervise teachers and ensuring efficient school
management.
34.
Under this component, the CF project will finance the following set of activities:
35.
Support to institutional reform with a focus on monitoring and evaluation. The CF
support will strengthen the MOE structures both at central and school levels. At the central level,
the CF will support (a) the establishment of a Project Support Team (PST) comprising a project
coordinator, and financial management and procurement specialists to assist with the day-to-day
management of the CF project. The PST will be located under the MOE’s Department of
Planning and (b) capacity building for the Departments of Planning, Administration, and
Instruction. The CF will cover operating and implementation costs related to the project
including contractual staff salaries, equipment, and auditors.
36.
At the school level, the CF will support training and technical assistance for monitoring
and evaluation at all basic education schools. This will include the development of assessment
tools at the school and classroom level as well as the training of DEOs and school directors for
66
monitoring and tracking of school level data, including attendance of teachers and students,
parental and community involvement, and instructional time. Also, in conjunction with the
strengthening of the government’s school grant system in component 2, the CF will support the
strengthening of PTAs/SMCs.
37.
The CF will also support training of DEOs and teachers on the use of learning assessment
instruments as a monitoring tool for early grade reading and math performance. The M&E work
will be build upon the current EU-funded project that is currently providing support to M&E.
38.
At the system level, the CF will provide technical assistance for the development of a
national assessment test for grades 4 and 7, which will focus on math and reading
comprehension.
39.
Strengthen personnel and payroll management. The CF will complement the ongoing
TA support provided under the civil service reform project under the World Bank’s Poverty
Reduction and Economic Management Department to reinforce the personnel and payroll
management. This includes managing of IFMIS by MOE, skills analysis for the setting up of a
pay and grade scale for teachers according to experience, qualifications, and performance. The
CF will also support studies and surveys to evaluate the motivation and conditions of teachers
including recommendations for regular and timely payment of salaries in remote and hard to
reach areas as well as deployment strategies to attract teachers to these areas.
67
Annex 5: Project costs and proposed financing
LIBERIA: Fast Track Initiative Grant for Basic Education
2010
(US$m)
Component 1:
Improving access
and equity in rural
areas
Component 2:
Improving
conditions of
teaching and
learning
Component 3:
Strengthening
central and local
levels to operate in a
decentralized
education system by
developing
management and
monitoring and
evaluation capacities
Total
2011
(US$m)
2012
(US$m)
Total
(US$m)
1.0
7.3
7.2
15.5
1.2
6.4
6.4
14.0
3.8
3.2
3.5
10.5
US$40.0 million
68
Annex 6: Institutional Arrangements
LIBERIA: Fast Track Initiative Grant for Basic Education
1.
The Senior Management Team (SMT) in the MOE is the executive body of the MOE. It
consists of the Minister of Education; Deputy Ministers for Administration, Instruction, and
Planning, Research and Development; the Assistant Ministers, the Legal Counsel, and the MOE
Financial Comptroller. The SMT will be charged with the overall policy direction as well as with
the key implementation decisions regarding the sector. The SMT delegates implementation to
the relevant assistant ministers/departments as necessary. The SMT will work in close
collaboration with the PFMU of the MOF, particularly in the area of financial management and
disbursement process. These structures have been functioning for the past year through the
implementation of the education pooled fund. Over the course of CF implementation, it has been
agreed to transfer financial management responsibilities to the MOE subject to: (a) the bureau of
GAC’s recommendation and (b) a favorable World Bank financial management assessment.
2.
The Education Sector Development Committee- Executive Board (ESDC-EB) will serve
as the oversight body to oversee the implementation of the ESP. The ESDC-EB will be chaired
by the MOE. This body will provide oversight of the policies laid out in the ESP by providing a
forum for policy dialogue and decision-making at the macro level. It will include representatives
from the Ministries of Finance and Planning, as well as donor representatives. The ESDC-EB
will meet quarterly and will report to the SMT of the MOE.
3.
The Education Sector Development Committee (ESDC) consists of all education
stakeholders such as implementation partners and civil society organizations. This will be a
forum for education stakeholders to be informed about education policy decisions and to report
on the progress of their relevant projects. At this level, Technical Working Groups established
by the Ministry will provide updates on their work.
4.
A Project Support Team (PST) within the MOE will be set up to assist with the day-today CF implementation. Additionally, with regard to capacity building in the MOE, the CF will
support the three Departments of Administration, Instruction, and Planning to strengthen sector
management to improve efficiency and accountability in the allocation and execution of external
resources; develop transparent planning and monitoring systems to achieve national education
goals; improve coordination, policy dialogue and utilization of domestic and external resources.
The PST will fall under the Department of Planning.
5.
Annual sector reviews involving all development partners and the government will take
place. During the annual review, one of the items discussed will be the implementation status of
CF activities. Annual reports will be presented to spell out achievements, challenges, lessons
learned and the way forward, including any recommendations on modifications.
6.
The Project Financial Management Unit (PFMU) is a unit established within the MOF for
the provision of financial oversight and technical support in financial management and reporting
to selected externally funded development initiatives in Liberia. It will be responsible for all
disbursements and produce regular financial reports and will provide on-the-job training to the
financial management specialists hired under the CF project. At mid-term, FM responsibilities
69
would be transferred to the MOE subject to (a) the bureau of GAC’s recommendation; and (b) a
favorable World Bank financial management assessment.
Implementation arrangements by component
Component 1: Increasing access and equity in rural areas (US$15.5 million)
7.
Under this component, specific responsibilities will be as follows: The proposed
infrastructure component of the CF will include the construction of primary and junior secondary
schools in the rural areas of the country. Some small remote rural primary schools will be
constructed by communities who will be provided with technical assistance to help them manage
the construction process. The larger primary schools and the junior secondary schools will be
constructed by contractors with a high level of supervision from competent and experienced civil
works consultants. Given the problems seen during the visits to the schools being constructed
under the pooled fund program caused by a lack of understanding both of the documents and of
good building practice on the part of both the supervisors and the contractors, a different
approach will have to be taken in the proposed school construction program to the supervision
and management of the construction of the schools.
8.
It is proposed that a qualified firm of civil works consultants (selected through an open
and competitive process) is employed to both manage and supervise the construction program for
all types of schools. The consultants should however not only supervise the construction of the
schools but during the construction process they should use and train local engineers and
architects in the management and supervision of the construction program so that at the end of
the CF there will be a number of competent Liberian civil works professionals capable of
managing and supervising similar projects in the future.
9.
The civil works consultants will provide one senior architect with extensive experience of
the design and construction of educational facilities in developing countries in the tropics and of
the management of rural construction projects to act as school construction manager and to
provide technical assistance to the DEF during the implementation of the project. The
consultants will also provide: two architects or engineers to carry out regular and frequent
supervision and training on the construction sites and one architect or engineer to be resident on
each construction site for the duration of the construction together with whatever back-up staff
are necessary to prepare the necessary documentation and to provide other necessary services.
10.
Prior to the start of the construction program, the firm will carry out the necessary
preparation work and documentation for the project including:

carrying out of site surveys for all school sites to be included in the program, including
the schools to be constructed by communities;

preparation of site plans for all school sites showing the site layout, access, levels, any
significant features, the situation and levels of all of the buildings and, for the junior
secondary schools especially, any site works;
70

preparation of working drawings for all of the buildings and other facilities;

preparation of explanatory details together with a construction handbook for all of the
facilities to be used by site supervisors, communities and contractors to assist them in the
construction process;

preparation of schedules of materials for all facilities to assist contractors and
communities in the pricing and ordering of materials; and

preparation of maintenance handbooks to be used by schools and communities in
maintaining their schools once they are complete.
11.
The consultant’s contract will clearly set out their duties and responsibilities in managing
and supervising the construction program and also state explicitly the following: the role of the
consultants in using and training local architects and engineers in the management and
supervision of the project; the duties and responsibilities of these supervisors; and their role on
site in detail. Before construction starts, the consultants will hold training workshops with the
supervisors to ensure that they understand the drawings and other contract documentation and
can assist the contractors in the construction process. These workshops should include the
construction of a typical primary classroom built largely by the supervisors themselves. This
will give the supervisors hands-on experience and a real understanding of how the buildings are
to be constructed. The classroom will also then be available for inspection by the contractors
and communities so that they too have a clearer understanding of how the buildings are to be
constructed and the standard of construction that they are expected to achieve.
12.
The consultants will prepare a construction handbook for the use of the supervisors (and
of the contractors and communities) on site clearly setting out their roles and responsibilities and
the details of the construction process. The work of the supervisors on site will have to be
closely monitored by the civil works firms’ staff and further training of supervisors (and
contractors and communities) will be carried out on site as and when necessary.
Technical assistance to the Division of Educational Facilities (DEF) in the MOE
13.
USAID has been providing DEF in the MOE with technical assistance in the form of an
architect who was assisting DEF with the monitoring of the current school construction program
and with other services. This architect proved to be invaluable to DEF but unfortunately his
contract finished at the end of November 2009 and he will not be replaced.
14.
The EU is providing some technical assistance to DEF in the form of an architect under
the European Commission Support to Education in Liberia (ECSEL) project but his main
responsibility is the management of the school construction program that is being funded by the
ECSEL project.
15.
There is an urgent need however to develop the capacity of DEF to enable the division to
carry out the tasks required of it. The Construction Manager provided by the civil works firm of
consultants will therefore be based in the DEF and, as well as managing the construction of the
schools funded under the project, he/she will be required to assist the DEF in:
71









Monitoring the school construction program that will be funded by the CF and any other
construction program that might be started during the duration of the CF.
Developing a long-term plan for the reconstruction of existing and the construction of
new primary, junior secondary and senior secondary school facilities after the completion
of the project.
Establishing space and quality standards and design briefs for educational facilities at all
levels for the use of architectural and engineering consultants in the designing of these
facilities.
Procuring more effectively and efficiently the services of architectural and engineering
consultants to design, document and supervise construction and to procure, if necessary,
the services of construction firms to carry out the construction of both large and small
projects. This will include assistance with the preparation of bidding documents and
training in the evaluation of bids, etc., and will be carried out in co-operation with the
Procurement Division.
Managing more efficiently and effectively the work of consultants engaged to both
design and supervise construction projects for the Ministry and in monitoring both their
work and the work of contractors.
Setting up a database of construction costs for educational facilities that can be easily
managed and updated.
Setting up and managing an educational facilities register for the whole country with the
co-operation of the EMIS Division.
Setting up an effective system for the management and maintenance of all of the
Ministry’s facilities.
Establishing, if necessary, DEF offices in the three regions of the country.
He/she will also train DEF staff in:


The use of computer-aided design and other software currently used in the building
industry and advise the MOE on the provision of hardware and software.
The management and supervision of small construction projects for the MOE.
Component 2: Improving the conditions of teaching and learning (US$14 million)
16.
Specific responsibilities will be assigned as follows by sub-component:
17.
Provision of learning materials (textbooks and teacher guides). The Divisions of Primary
and Secondary Education under the leadership of the Assistant Ministers of Primary and
Secondary Education are responsible for the selection of books and reading materials for the
primary and junior secondary levels. The Department of Administration would be responsible
for the procurement and delivery arrangements. All materials would be packaged for the
individual school and would be delivered to the schools. To ascertain whether the learning
materials purchased are actually arriving in schools being effectively used in classrooms, a
technical audit will be done at the start of the project, and again at the end of the second year of
implementation.
72
18.
Technical support to improve the implementation of school grants. Technical Assistance
will be provided in line with World Bank procedures. The Departments of Planning and
Administration in the MOE will handle the planning and procurement arrangements. The CF will
support technical assistance for the development of school grant guidelines. In Year 2, the CF
will support the scaling-up of the school grants. The grant amount received by each school will
be published in the local newspaper and be communicated via radio.
19.
The funds for the school grants will be released subject to (i) development of school
grant guidelines; and (ii) verification that at least 400 of the selected primary and junior
secondary schools have met the eligibility criteria to receive grants.
20.
Individual schools will be transferred the funds upon successful completion of a school
grant agreement including (a) opening of bank account, (b) the establishment of a school
management committee (SMC) and (c) the identification and training of staff to take up
responsibility for the management of funds transferred.
21.
The school grant agreement should include: (i) that the grant be provided by MOE on a
non-reimbursable grant basis; (ii) the obligation of the school to carry out the grant in accordance
with the School Grant Guidelines and the PIM, as appropriate; (iii) the obligation of the school to
maintain adequate records of resources and expenditures, in accordance with sound accounting
practices; (iv) the requirement that goods, works and services to be financed from the proceeds
of the grant will be procured by the school in accordance with the procedures in the Grant
Agreement and as further specified in the School Subgrant Guidelines and the PIM; (v) the right
of the MOE to inspect by itself, or jointly with the World Bank, if the World Bank so requests,
the goods, works and services financed by the grant and any relevant related records and
documents; (vi) the right of the MOE to suspend or terminate the right of the school to use the
proceeds of the grant upon the failure by such school to perform any of its obligations under the
school grant agreement; and (vii) the obligation of the school to act in compliance with the AntiCorruption Guidelines.
22.
An independent auditor will be recruited under the CF to conduct spot checks on school
grants and teacher attendance on a random and representative sample of schools on a quarterly
basis for each year of CF implementation.
23.
Support for early childhood development. The ECD activities will be implemented by the
ECD/Pre-primary Unit in the MOE in collaboration with partners including OSI/SOROS
Foundation, Plan Liberia, Save the Children, UNICEF, and UNESCO. A new national, intersectoral ECD policy is under development and will provide a framework for the different actors
working on ECD. The National Inter-Sectoral ECD Committee, which is guiding the ECD policy
development and implementation, will help ensure alignment between MOE activities and other
policies and programs for young children in Liberia.
24.
Development of a community-based ECD model in rural markets and villages to reach 35-year-olds who do not have access to pre-primary schools. The MOE will work with the
MOHSW on designing and implementing the community-based ECD centers in rural areas. Once
the design is finalized, potential sites in rural areas will be identified by the MOE, in cooperation
73
with the CEOs, DEOs, and local implementation partners, based on a quick needs assessment of
unmet need for ECD and community demand in rural areas. In up to 10 selected sites, traditional
leaders, local government officials, parents, and other stakeholders will be sensitized on the
importance of the early years and supported in the creation (i.e. minor upgrading of existing
markets or vacant classes, assembly of low-cost structures, provision of equipment and
play/learning materials) and management of cost-effective, quality ECD centers. Communities
will be responsible for the recruitment of educators. NGOs, with capacity for supporting
community mobilization and development of ECD in rural areas, will provide short training to
the educators and ongoing technical support. To assess the cost-effectiveness of the model, and
its potential to be scaled up, the MOE will oversee the monitoring and evaluation of these sites.
These ten community ECD centers will be located near the community-built primary schools to
facilitate successful transition of students between early childhood education and primary
education.
25.
Systems development. In addition, the CF will support systems development to improve
the quality of ECD provision and improve children’s learning and development outcomes. The
MOE, with support from partners (OSI/Soros Foundation, UNICEF and UNESCO), will develop
and disseminate the necessary tools to sustain a quality ECD system, including: (i) minimum
program and pedagogical standards and operational guidelines for ECD provision; (ii) a new
curriculum focused on play-based learning based on indigenous practices and informed by sound
principles of child development; (iii) guide to development of play-based teaching and learning
support using low-cost, locally-available materials; and (iv) teacher training and certification
frameworks to support the development of ECD professionals.
26.
Support for school health. The school health activities will be implemented through a
joint effort of the MOE, the MOHSW and partners such as UNICEF, Africare and Plan. The CF
will target about 300,000 children in eight counties (Bomi, Bong, Gbarpolu, Grand Bassa, Grand
Cape Mount, Lofa, Margibi, and Montserrado) that are not being covered by the other partners.
The school health department will implement de-worming in schools in counties that do not have
an NGO that is working in school health. Generally, execution of all the activities will fall under
the responsibility of the school health department of the MOE.
27.
These drugs will be stored by the MOHSW and given out to either partners (with the
permission of the MOE) or directly to the MOE. The MOE will then send the drugs either
directly to the schools that do the de-worming with information to the CEOs and the DEOs or to
the DEOs who then sends them to the schools. Due to logistic difficulties, and the capacity
within the MOE, bi-annual de-worming is being proposed for 300,000 children in 8 counties.
28.
For the de-worming, a rapid appraisal of the eight counties will be undertaken to
determine the location, prevalence, and species of worms. This will be followed by the
development or adaptation of training materials, sensitization of the community and training of
teachers to implement the de-worming. The training will be conducted in stages, the first being a
two-day training of 60 master trainers (4 from each county). This training will be provided with
the help of some external assistance. These master trainers will train both district level trainers
and the teachers at the same time over a period of three days.
74
29.
Life-skills, population, family life education. With assistance from partners, the MOE
produced about 1,000 copies of the Teachers’ guides for life-skills, population/ family life
education. The school health division will be responsible for developing and producing lifeskills student modules for grades 1 – 9 (9,000 copies) taking into consideration existing material,
developing and printing a national school health and nutrition policy (500 copies) and training
3,000 teachers in primary and junior secondary schools from the 8 counties. The same 60
master trainers for de-worming will be retrained as life skills master trainers to cascade training
at country and district levels.
Component 3: Strengthening central and local levels to operate in a decentralized
education system by developing management and monitoring and evaluation capacities
(US$10.5 million)
29.
Under this component, specific responsibilities will be assigned as follows by subcomponent:
30.
Support for institutional reform with a focus on monitoring and evaluation. At the central
level, a Project Support Team (PST) for the day-to-day management of CF activities and
additional staff to support the three Departments of Administration, Planning, and Instruction
will be recruited. The recruitment of the project coordinator and two procurement specialists for
the PST will be an effectiveness condition. The remaining support staff of the PST including
financial management specialists will need to be recruited within two months after effective date
(dated covenant). The school level activities will fall under the Department of Planning, the
directorate of primary education, and the county education officers. The PST will assist in the
search for, and contracting with, the external technical assistance as needed. The PFMU will
coordinate all the payments of consultants or consulting firms/training institutions that may be
hired to conduct training and studies. At the system level, the Bureaus of Primary and Secondary
Education and WAEC will be assisted with the development of a national assessment test
instrument to assess learning achievements, with a particular focus on reading proficiency and
numeracy, in grades 4 and 7.
31.
Personnel and payroll management. Technical Assistance to conduct the skills analysis
will be provided following World Bank procedures, with the Departments of Planning and
Administration within the MOE handling the planning and procurement arrangements. The
studies and surveys will be conducted in line with World Bank procedures, with the Department
of Planning and the Department of Administration handling the planning and procurement
arrangements, and the relevant departments providing technical inputs.
75
Annex 7: Financial management and disbursement arrangements
LIBERIA: Fast Track Initiative Grant for Basic Education
Introduction
1.
In accordance with the Financial Management Practices Manual issued by the Financial
Management Sector Board on November 3, 2005, a financial management assessment was
carried out to assesses the adequacy or otherwise of the financial management arrangements for
managing the EFA FTI Fast Track Initiative Catalytic Fund by the MOE. The objective of
the assessment was to determine whether: (a) the MOE had adequate financial management
arrangements to ensure project funds would be used for purposes intended in an efficient and
economical way; (b) the project’s financial reports will be prepared in an accurate, reliable and
timely manner; and (c) there are procedures and processes to safeguard the assets of the project.
The financial management assessment was carried out by the Bank financial management
team and included interviews with key staff (including EU Financial Management Specialist-,
Deputy Financial Comptroller and the Comptroller) at the MOE. The assessment also drew upon
experience with ongoing projects whose financial management is managed by the PFMU of the
MOF.
2.
Implementation Arrangements
3.
Due to weak financial management capacity at the MOE currently and the need to ensure
an effective and efficient management of resources, it has been agreed that the existing PFMU at
the MOF will have the responsibility to manage funds under the CF. At mid-term and thereafter
it would transfer this responsibility to the MOE subject to: (a) the bureau of GAC’s
recommendation; and (b) a favorable World Bank financial management assessment.
The PFMU is staffed with a team of competent financial professionals with the required
experience and qualifications acceptable to the World Bank. The PFMU team will be responsible
for the day-to-day management of project finances, in accordance with the project financial
procedures manual already developed for ongoing IDA projects. The PFMU will also have
responsibility for project financial reporting, using already agreed interim un-audited financial
statements (IFR) formats in use for the other World Bank projects as may be modified from time
to time.
4.
The working relationship and the respective responsibilities between the PFMU and the
MOE will be outlined in a Memorandum of Understanding (MoU) to be signed between the
parties prior to disbursement.
5.
6.
In general terms, under the MoU the PFMU will have the following responsibilities:
i. Operate an efficient financial management system acceptable to the World Bank;
ii. Train the two project accountants at the MOE in World Bank financial
management procedures to ensure that they will have obtained sufficient experience
to transfer FM responsibility to the MOE during the course of the project or at
completion subject to favorable FM re-assessment of MOE;
iii. Establish effective accounting and transaction processing procedures to support the
payment of all eligible expenditures;
76
iv. Provide internal audit services and periodically review the control environment to
ensure that policies and procedures are being complied with;
v. Prepare, on a timely basis, quarterly financial reports and any other financial reports
as may be requested by the World Bank; and
vi. In consultation with the MOE, ensure that the financial statements of the project are
audited and conform to the financial covenants as per the Grant Agreement.
Country Issues
A PEMFAR were conducted in 2007 and included an analysis of Liberia’s PFM strengths
and weaknesses. The findings from the PEMFAR showed that the government has taken
considerable actions to improve public financial management since 2006. Government revenues
have increased several folds since 2002/03, and expenditure controls have been strengthened
through the establishment of the cash management committee and the interim commitment
control system. However, the government still needs to address weaknesses in its financial
management systems, specifically within the areas of the legal and regulatory framework;
internal and external audit functions; procurement and concessions; budget planning, formulation
and execution; accounting, recording and reporting; human resources and payroll management;
cash and debt management; and aid management.
7.
The government’s developmental and poverty reduction priorities are anchored in the
PRSP which is generally aligned with the budget although there is no formal poverty reducing
expenditure tracking systems. The budget cycle is coordinated by an inter-ministerial Budget
Committee and spending ministries are consulted early in the budgeting process. All revenues
are by law deposited into a revenue bank account at the Central Bank and expenditure from this
account is strictly in accordance with annual cash plans and allotments. However, the majority of
donor expenditure is project based and not executed through the government budget.
8.
The country lacks a sufficient number of qualified accountants to serve the public and
private sector. A PFMU provides centralized project financial management for donor projects.
Although previously an international firm was providing technical assistance for procurement at
the MOF (where the PFMU is located), their contract has now ended. The PFMU is staffed with
qualified consultants with experience in managing donor-funded projects. Fiduciary risks on
financial management for donor-funded projects are mitigated by the use of the PFMU, which
has internal controls and procedures for financial management and practices acceptable to the
Bank.
9.
The lack of qualified PFM personnel is a major constraint to implement PFM reforms to
address the weaknesses identified in the PEMFAR. At the moment key agencies such as the
MOF are using external experts under the Governance and Economic Management Program
(GEMAP) and World Bank’s technical assistance provided to the Resource Management Unit.
10.
The government is making progress in PFM reforms. The Cabinet approved the Internal
Audit strategy in June 2008 that will see the establishment of an internal audit cadre and a
charter clarifying the roles and responsibilities for internal controls. The MOF has moved from a
single entry recording system to an interim accounting system that is now used to prepare budget
outturn reports. The interim system provides a foundation for migrating to IFMIS that will
11.
77
eventually handle all the accounting and recording for the consolidated funds with arrangements
to capture and report on donor-funded projects. A PFM Law and its enabling regulations and
manuals are being prepared in order to further strengthen the legal and regulatory framework.
In the area of procurement, the Public Procurement and Concessions Commission
(PPCC) Act came into force on January 16, 2006, as Liberia’s first significant step towards
subjecting public sector contracts to transparency and meaningful competition. These measures
in financial management and procurement will put in place appropriate structures and processes
to promote transparency and accountability and mitigate the fiduciary risk in utilizing public
funds both at the country and project level.
12.
Project Risk Assessment and Mitigation
The Risk Assessment and Mitigation table below shows the results of the risk assessment
from the Risk Rating Summary. This identifies the key risks that MOE may face in achieving the
CF objectives and provides a basis for determining how they should be addressed.
13.
Type of Risk
Inherent Risk
Country Level
The PEMFAR assessment
conducted in 2007 identified
weakness in the country
financial management systems
with specific reference to
internal audit, external audit,
legal and regulatory
framework, budgeting ,
procurement and concession
and cash and debt
management.
Entity Level
Though the MOE is currently
implementing the pooled fund
(UNICEF/Soros) for which the
Bank (though the EPDF)
provides financial and
technical support, the MOE
does not have hands-on
experience in managing WBfunded projects; it has
inadequate capacity to
implement large projects may
affect the achievement of the
Risk
Rating
Risk Mitigating
Measures/Remarks
Residual risk
rating
Conditions
for
Negotiation
or
Effectiveness
(Yes/No)
H
This risk is being addressed through
the various support by the Bank and
other donors to enhance the public
financial management system
through the various financial
management reforms the
preparation of the financial
management act, public procurement
act, setup of cash management
committee, interim commitments
control systems, and budget
committee.
S
No
H
The PFMU shall be used to support
the project by providing financial
management services to MOE. To
this end MOE will execute a MoU
with PFMU for these services in a
manner similar to the education
pooled fund.
S
No
Additionally, the oversight role of
the Bank through prior review, NoObjection process and technical and
financial management supervisions
78
Type of Risk
Risk
Rating
overall objective of the EFA
FTI CF and the monitoring and
evaluation process.
Project Level
Given the project amount, and
MOE’s first opportunity to use
Bank procedures, there is the
risk associated with
inexperience and lack of
coordination and direction
amongst the divisions and
operatives of MOE.
Risk Mitigating
Measures/Remarks
Residual risk
rating
Conditions
for
Negotiation
or
Effectiveness
(Yes/No)
S
No
could help reduce the risk.
FM challenge at school level will
depend on identifying trainable staff
to be provided requisite training to
take on FM responsibilities for
reporting, using appropriate
templates etc. The identification of
trainable staff, provision of training
and completion of the report/data
collection template will be a
condition for disbursing the school
grants planned under the CF.
H
The PFMU will provide financial
management services to MOE in
order to minimize fiduciary risk.
Two FM experts recruited by the
MOE will be trained by PFMU
during the first year of
implementation to familiarize them
with WB procedures.
The EU project will also assist in
developing capacity to implement
PFM policies.
Overall IR
Control Risk
Budgeting
The current weaknesses in the
budget and budgetary control
process and procedures at the
MOE will increase the
challenges in the preparation,
execution, submission and
monitoring of realistic annual
work plans and budget.
Accounting
a)
Inadequate staff
numbers may affect
accurate recording of
financial transactions of the
MOE and the project.
H
S
S
This risk could be mitigated through
documenting the process of
preparation, execution and
monitoring of the annual work plan
and budget in a project
implementation manual coupled
with the successful implementation
of EU financial management
assistance planned for MOE, if it is
successful.
M
No
H
Accounting for the CF could be
done at the PFMU under appropriate
arrangements. Staff at MOE would
limit their involvement to ensuring
properly approved requests are made
S
No
79
Type of Risk
Risk
Rating
Risk Mitigating
Measures/Remarks
Residual risk
rating
Conditions
for
Negotiation
or
Effectiveness
(Yes/No)
M
No
to PFMU for payment transactions.
b)
The risk will be even
more severe at the school
level where there are no FM
staff.
MOE would, through the EU
strategic financial management
development plan, identify trainable
staff at school levels to train them to
provide limited accounting services.
In the long term, the MOE will
recruit qualified accountants for the
subsidiary level management in line
with the Ministry’s strategic plans,
which are being formulated.
The World Bank has just completed
an operational review. Based on the
outcome of this review, additional
staffs will be employed to strengthen
the Unit. The AfDB is funding a
second project accountant for the
PFMU.
c)
With the continued
increase in the projects
managed by the PFMU,
their current staffing may
affect prompt disbursement
of funds to project suppliers,
contractors and subimplementing partners as
well as submission of both
the annual audit report and
IFRs.
Internal Controls/Internal
Auditing
A functioning unit is yet to be
established. Processes,
procedures, rules and
regulations may not be
followed by operatives and
sometimes even management
staff.
Staffing, quality of work of the
Internal audit function at
PFMU and possible conflict
between the Unit head and the
Internal audit department may
affect the internal audit
deliverables.
S
The PFMU will provide a manual of
finance and accounting processes
and procedures to be followed by
MOE in conducting financial
transactions of the project.
The PFMU will also provide Internal
Audit services through reviews and
reports on breaches of the Public
Financial Regulations and PFMU
procedures manual.
The PFMU has instituted periodic
internal meetings to help resolve any
internal conflicts that could affect its
work.
The periodic reports issued by the
IAU will be discussed within PFMU
before submission to implementing
agencies.
In addition, the effectiveness of the
internal audit function at PFMU will
be assessed regularly by the Bank
80
Type of Risk
Risk
Rating
Risk Mitigating
Measures/Remarks
Residual risk
rating
Conditions
for
Negotiation
or
Effectiveness
(Yes/No)
S
No
M
No
FMS during supervision missions.
Funds Flow
Given the provision of grants
to schools and the capacity
gaps at the lower management
levels, there could be increased
delays in processing
withdrawal applications arising
from delayed delivery of
relevant expenditure
information from schools,
which could affect project
implementation.
H
The MOE will, in association with
PFMU, develop data capture
templates simple enough for trained
staff at school levels to complete,
consolidate and submit to the center
for delivery on time to PFMU to
prepare withdrawal applications on
time to be able to service project
implementation.
The identification of trainable staff
to undertake FM services at school
levels, preparation of appropriate
data capture and reporting templates
and training of identified persons
will be conditions for the
disbursement of the schools grants to
the individual schools.
Technical assistance will be
provided under the CF to strengthen
the process including the
development of a school grant
guidelines (allocation criteria, FM
rules, formalization of roles and
responsibilities of all stakeholders
involved).
School grant funds will be released
subject to (a) development of school
grant guidelines; and (b) verification
that at least 400 of the selected
primary and junior secondary
schools have met the eligibility
criteria to receive grants.
Financial Reporting
Quality and timeliness in
submitting IFRs and other
reports.
S
The PFMU operates an efficient
computerized system (Sun
Accounts) capable of generating
reliable reports.
The use of simplified templates for
data collection at school levels will
facilitate prompt feedback to PFMU.
Standard IFR formats being used for
ongoing IDA projects will be
81
Type of Risk
Risk
Rating
Auditing
A weak audit environment
is prevalent in Liberia and
this might affect the quality
of audit report received and
hence their acceptability to
the Bank. The identified
risk will also affect the
audit report submission in
the financial covenant.
S
Risk Mitigating
Measures/Remarks
adopted for the CF grant.
Terms of Reference for the external
auditors have been prepared by
PFMU, on behalf of MOE, for the
review of the Bank and were
discussed and agreed upon during
negotiations.
Residual risk
rating
Conditions
for
Negotiation
or
Effectiveness
(Yes/No)
M
No
Audit ToR will provide for
regular/periodic management review
of the school grants program.
To ensure timeliness of audit
compliance, the procurement
process for engaging acceptable
auditors will commence four months
after effectiveness.
Overall Risk Rating
H – High
S – Substantial
H
Implementation of
recommendations
M – Modest
S
L – Low
Strengths and weaknesses of the MOE Financial Management System
15.
The MOE is responsible for management of the education sector in Liberia. It is headed
by a Minister, who is assisted by a number of Deputies for administration, planning, and
instruction.
Strengths
16.
The MOE Accounting & Finance Department is headed by a Financial Comptroller, a
professionally qualified accountant, who is assisted by a deputy Comptroller, a budget analyst
and two graduate accountants.
The two graduate accountants have been exposed to some of the procedures employed by
the PFMU and could take responsibility for document preparation on the side of MOE. They
have been engaged on the operation of the education pooled fund, which is managed by PFMU
and administered by UNICEF.
17.
Weaknesses
18. Some of the weaknesses identified in the MOE include:
(i) Policies and procedures have not been documented in a manual.
82
(ii) The MOE is in the process of acquiring computer software to assist its
accounting and finance function. The EU is financing this facility as part of
assistance for financial management reform in the MOE. After the acquisition
and installation, staff will be trained to appropriate proficiency levels for them to
effectively utilize the facility.
(iii) The MOE Finance Department does not have any experience with Bank’s FM
and disbursement procedures. To this end, the CF will finance the recruitment of
two FM specialists to be trained in WB procedures by the PFMU in the MOF.
(iv) The MOE does not have a functioning Internal Audit Unit (IAU). The MOE has
yet to recruit staff for the establishment of an IAU.
(v) The MOE operations have been audited by the GAC. The MOE has no
experience of the World Bank’s procurement rules and procedures for recruiting
consultants such as auditors.
The following table outlines some actions agreed with the MOE’s Comptroller that could
mitigate the weaknesses identified.
Action
Prepare written
Financial Management
and Accounting Policies
and Procedures Manual,
taking cognizance of the
Public FM Regulations
and related legislation
Identify and train staff
in the schools for
training in the provision
of limited FM services.
Responsibility
Financial Comptroller
(MOE)
Target Date
June 2010
Financial Comptroller,
FM experts (MOE,
PST)/EU Project
Coordinator
Within 12 months of
project effectiveness
Develop simple
templates for the
capture of expenditure
information from
schools.
Financial Comptroller,
FM experts
(MOE,PST)/ PFMU
Within 12 months of
project effectiveness
Negotiate a MOU with
PFMU, defining
services to be provided
by PFMU including
capacity building
Prepare TOR for hiring
an independent auditor
for the annual audit of
MOE
By negotiations
This MoU was
discussed and agreed
upon during
negotiations.
Finance Manager
(MOE)/PFMU
By negotiations
The TORs have been
reviewed by the World
Bank for acceptability.
83
Comments
This manual has been
completed.
The FM specialists
recruited under the CF
will assist with capacity
building. This will be a
necessary step for the
allocation of the grants.
MOE (including PST),
and PFMU will
collaborate in this
exercise.
the CF.
Hire an independent
auditor for the CF.
MOE/PFMU
Within six months of
project effectiveness
The auditor will be
hired in accordance
with Bank’s Consultant
Selection Guidelines
and must be acceptable
to the World Bank.
Project Financial Management
19.
The PFMU will be responsible for the day-to-day financial management of the CF. The
PFMU will establish an effective accounting system that provides for adequate segregation of
functions and is capable of recording all accounting transactions and reporting correctly all assets
and liabilities of the project. The CF will adopt the cash basis in the treatment and recording of
all transactions. In addition, the CF will maintain a statement of liabilities outstanding at all
times to correctly reflect the project’s indebtedness to suppliers and third parties. The financial
management system will follow the financial accounting procedures established for the ongoing
projects. The working relationship and the respective responsibilities between the PFMU and the
MOE will be outlined in a MoU to be signed between the parties by effectiveness.
Budgeting Arrangements
20.
The MOE will prepare an annual budget for review and approval by the World Bank
prior to implementation in any year. Project implementation will be based upon agreed programs
to be financed by the CF. Most of the activities of the key components are already known and
these will be included in the CF’s annual budgets. The annual project budget will be reviewed
and agreed with the World Bank, and “No Objections” will be issued only for activities agreed in
the budget.
Accounting Arrangements
21.
The established systems, processes and procedures acceptable to the World Bank will be
employed by PFMU to organize and manage the accounting function for the CF on behalf of the
MOE. The accounting systems are computerized and based on Sun Accounting Software as the
accounting platform for recording and processing all financial transactions of the project. The
platform will also provide the basis of all reports relating to the CF.
All the finance and accounting procedures have been documented and reviewed by the
Bank as acceptable for use in the management of Bank and other donor-funded projects.
For the provision of school grants, the MOE will identify trainable staff in schools to be provided
with basic accounting skills training to enable them to compile, consolidate, and summarize
expenditure data for submission to central MOE finance and hence to PFMU using simplified
data collection templates prepared for that purpose.
22.
Internal Control & Internal Auditing
23.
The PFMU has an internal audit unit, which will provide internal audit services to the
MOE and particularly to the CF. The unit reviews all financial transactions to ensure that the
transactions comply with project financing agreements and all national financial rules and
84
regulations. It issues periodic reports on the status of internal control for the benefit of the
entities it provides services to and for the PFMU.
Funds Flow and Disbursement Arrangements
24.
Funds Flow: Under the Grant, the PFMU, on behalf of MOE, will establish a Designated
Account with a Commercial Bank acceptable to the World Bank. The Designated Account will
be maintained in US$ to receive disbursements from the Grant Account opened by the Bank on
behalf of the beneficiary institution. An initial advance will be disbursed into the Designated
Account on request and subject to compliance with conditions that will be specified in a Grant
Agreement and additional instructions that will be provided in a Disbursement Letter.
The PFMU will make payments for approved and authorized transactions to contractors,
suppliers and service providers. The PFMU will be responsible for making replenishment
requests to the World Bank in accordance with the Bank’s disbursement policies and procedures.
25.
The World Bank will receive withdrawal applications with supporting documentation
(including summary sheets, bank statement and reconciliation statement, transaction documents
including contracts), where appropriate. The World Bank will disburse the amount requested
out of the Grant if documentation is acceptable and transactions are eligible.
26.
30.
Transfer of funds to schools will not commence until the current system has been
evaluated and strengthened. The funds for the school grants will be released subject to (i)
development of school grant guidelines; and (ii) verification that at least 400 of the selected
primary and junior secondary schools have met the eligibility criteria to receive grants.
Individual schools will be transferred the funds upon successful completion of a sub-project
agreement including (a) opening of bank account, (b) the establishment of a school management
committee (SMC) and (c) the identification and training of staff to take up responsibility for the
management of funds transferred.
85
Figure 8: Funds Flow Chart
Key:
Fund Flow
Document Flow
Supplies and Services
World Bank
Loans &
Disbursement
Ministry
of
Education
PFMU
(MOF)
Suppliers
and Service
Providers
Schools
Schools
Schools
Schools
Schools
86
Schools
Disbursement Arrangements: The proceeds of the grant would be disbursed over a
period using transaction based disbursement.
27.
Category
Amount of the
Grant Allocated
(expressed in USD)
Percentage of Expenditures to be Financed
(inclusive of Taxes)
(1) Goods, works and
consultants’
services under the
Project
35,800,000
100%
(2) School Subgrants
under Part 2.b.2 of
the Project
4,200,000
100% of the cost of goods, works and services
financed by Subgrants
TOTAL
40,000,000
For a period of four (4) months after the closing date of the Grant, disbursements for
expenditures incurred prior to the closing date will be allowed. The following disbursement
methods will be available to the CF:
28.
a) Advance and Use of Statement of Expenditures (SOEs)
The Recipient will open a Grant Designated Account (DA) for the project.
The DA for the project funds will be opened at a commercial bank, under
terms and conditions satisfactory to the World Bank and maintained in US
Dollars. The carrying amount of the DA will be specified in the Disbursement
Letter to be issued separately.
Disbursements for all expenditures would be against full documentation,
except for items below a threshold and were determined during appraisal for
which disbursements would be based on SOEs. Supporting documentation for
SOEs shall be retained by the implementing agency for review by World Bank
missions and external auditors.
b) Direct Payments
The World Bank may make payments direct to a third party (i.e. Consultants,
Contractors and Suppliers) at the request of the recipient in a prescribed
format to the World Bank for eligible expenditure incurred under the project.
c) Special Commitments
87
The World Bank may make payments to a third party for eligible expenditure
under Special Commitment entered into, in writing, at the borrower’s request
and on terms and conditions agreed between the Bank and the Recipient.
Financial Reporting Arrangements
31.
The PFMU, on behalf of MOE, will prepare quarterly Interim (un-audited) Financial
Statements or Reports (IUFR/IFR) to be submitted to the World Bank within 45 days after the
end of each calendar quarter. The IFR will comprise the following statements:








Sources and Uses of Funds (will provide quarterly information and cumulative to
date)
Uses of Funds by Expenditure Category/Component (will compare actual
expenditures with budget)
Category Disbursement Status
Schedule of SOE Replenishments
Schedule of Fixed Assets (acquired under the Grant)
Bank Statements and Bank Reconciliation Statements
Schedule of Commitments/Contracts’ Payment Status
Schedule of Projected Commitments and Status of Procurement
The IFR will be reviewed and a quarterly review report shared with the Recipient and
filed in the World Bank’s system. These reviews form part of the FM supervision activity and
will be part of the overall assessment of FM performance under the Grant.
32.
Auditing
33.
Independent and qualified auditors, acceptable to the World Bank, would, with the
consent of the GAC, be selected to carry out an annual financial audit of the project in
accordance with World Bank’s procedures for the selection of consultants. The arrangements for
the audit of the project must be finalized (recruitment completed) within six months of the
project being declared effective.
The CF’s annual financial statements including movements in the designated accounts
will be audited in accordance with International Standards of Auditing (ISA) and a single
opinion will be issued to cover the project financial statements, SOEs and the designated
account, in accordance with the Bank’s audit policy.
34.
The auditors’ report and opinion in respect of the financial statements including the
management letter would be furnished to the World Bank within six months of the close of each
fiscal year.
35.
Financial Covenants and Disbursement Conditions
36. Covenants


Submission of quarterly Interim Un-audited Financial Statements (or Report) within
forty five (45) days of the end of each quarter.
Submission of audited annual Financial Statements and Audit Report (including an
audit Management Letter) within six months after the end of the CF’s fiscal year.
88

For the school grants, transfer of funds will not commence until the current system has
been strengthened. This would include (i) the development school grant guidelines;
and (ii) verification that at least 400 of the selected primary and junior secondary
schools have met the eligibility criteria to receive grants.
Supervision plan
During CF implementation, intensive World Bank supervision will be required in order to
ensure that the project financial management arrangements are in place and functioning. The first
supervision mission, six months after effectiveness, will take the form of an FM Specialist
visiting MOE. There will be other FM activities, such as desk review of IFRs and annual audit
reports, as part of FM supervision.
37.
Conclusion The financial management assessment established that the financial
management system in operation at the MOE did not meet the minimum standards required by
the Bank. The assessment recommended a number of actions, short-term and longer term actions,
to address the short-comings of the FM system and proposed an interim solution which depends
on an established governmental agency to take FM responsibility for the CF.
38.
It was the recommendation of the FM assessment team that the PFMU of the MOF
should be nominated to take responsibility for the financial management of the project, while
MOE is assisted to rectify the short-comings. Some of the weaknesses will take a while to
correct because of the severe resource constraints facing the Government of Liberia (GoL).
39.
The FM system of the MOE will be assessed periodically during project implementation
with the view to monitor the maturation of the system as the project and other donors assist MOE
to build and maintain an adequate FM system. The risk rating for the CF would be no more than
substantial (S) if the assessment recommendations are implemented.
40.
89
Annex 8: Procurement Arrangements
LIBERIA: Fast Track Initiative Grant for Basic Education
A. General
1.
Procurement for the proposed CF would be carried out in accordance with the World
Bank’s "Guidelines: Procurement under IBRD Loans and IDA Credits" dated May 2004 and
revised October 2006; and "Guidelines: Selection and Employment of Consultants by World
Bank Borrowers" dated May 2004 and revised in October 2006 and May 2010, and the
provisions stipulated in the Legal Agreement. The various items under different expenditure
categories are described in general below. For each contract to be financed by the Grant, the
different procurement methods or consultant selection methods, the need for pre-qualification,
estimated costs, prior review requirements, and time frame are agreed between the Borrower and
the Bank in the Procurement Plan. The Procurement Plan will be updated at least annually or as
required to reflect the actual project implementation needs and improvements in institutional
capacity.
2.
Procurement of Works: A total of about US$10.97 million of works would be procured
under this project. These would include (i) rehabilitation works for rural early childhood
development centers (ECD), (ii) primary schools to be constructed in remote areas with
communities involved in the construction; and (iii) primary schools and junior secondary schools
to be constructed by contractors. The procurement will be done using the Bank’s Standard
Bidding Documents (SBD) for all International Competitive Bidding (ICB) and for all others
National SBDs agreed with or satisfactory to the World Bank. Contracts below US$3,000,000
but above US$100,000 equivalent per contract will be procured under National Competitive
Bidding (NCB). Irrespective of this, NCB contracts deemed complex or subject to risks will be
identified in the procurement plans and be prior-reviewed. For sustainability reasons, the works
on (i) primary schools and (ii) junior secondary schools would be appropriately packaged to be
procured through the NCB processes irrespective of cost. Contracts estimated to cost less than
US$100,000 equivalent per contract would be procured using shopping procedures based on a
model request for quotations satisfactory to the World Bank. Direct contracting may be used
where necessary, but will be subject to World Bank’s No-Objection.
Procurement of Goods: A total of about US$9.03 million of goods would be procured
under this project. These would mostly include computers, generators and materials for PST and
MOE, vehicles for DEO’s, PST and MOE, supplementary readers, teacher support supplies, and
ECD materials, etc. The procurement will be done using the Bank’s SBD for all ICB/LIB and
National SBD agreed with or satisfactory to the Bank. Contracts below US$500,000 but above
US$50,000 equivalent per contract may be procured under NCB. Irrespective of this, NCB
contracts deemed complex or subject to risks will be identified in the procurement plans and be
prior-reviewed. Contracts estimated to cost less than US$50,000 equivalent per contract would
be procured using shopping procedures based on a model request for quotations satisfactory to
the Bank. Direct contracting may be used where necessary, subject to Bank’s No-Objection.
3.
4.
Procurement of Non-Consulting services: A total amount of about US$ 0.64 million of
non-consulting services will be procured to cover the maintenance of all the construction works
consisting of CDD works, primary schools, and junior high schools. These will be procured
using shopping procedures based on a model request for quotations satisfactory to the Bank.
90
5.
Selection of Consultants : Consultancy services valued at about US$15.24 million to be
provided include (i) management personnel in the project support team and to meet identified
technical capacity needs of the various MOE divisions; (ii) supervision of construction works,
(iii) school grants system development, (iv) national assessment tests for grades 4 and 7, (v)
capacity building, (vi) sole-sourcing of WAEC to carry out national assessment, (vii) M&E
support for teachers and directors, (viii) de-worming activities, (ix) project audit, etc. Contracts
for consulting services, each estimated to cost US$200,000 equivalent or more, will be awarded
following the procedure of Quality and Cost Based Selection (QCBS). Consulting services
estimated to cost US$100,000 but less than US$200,000 per contract under this project would be
procured following the procedures of Selection Based on Consultants’ Qualifications (CQS),
Fixed Budget Selection (FBS), Quality Based Selection (QBS), and Least Cost Selection (LCS)
as will apply to the circumstances as respectively described under paragraphs 3.7, 3.5 and 3.6
respectively of the Consultant’s Guidelines. For all contracts to be awarded following QCBS,
QBS, FBS and LCS, the Bank’s Standard Request for Proposals will be used. Procedures of
Selection of Individual Consultants (IC) would be followed for assignments which meet the
requirements of paragraph 5.1 and 5.3 of the Consultant Guidelines. LCS would be used for
assignments for selecting the auditors. Procedure of Single-Source Selection (SSS) would be
followed for assignments which meet the requirements of paragraphs 3.10-3.12 of the Consultant
Guidelines and will always require the World Bank’s prior review regardless of the amount.
6.
Short lists of consultants for services estimated to cost less than US$200,000 equivalent
per contract may be composed entirely of national consultants in accordance with the provisions
of paragraph 2.7 of the Consultant Guidelines, if in-country capacity exists. Consultancy services
estimated to cost above US$100,000 per contract for firms, and contracts for individuals for
assignments estimated to cost above US$50,000 and single source selection of consultants (firms
and individuals) will be subject to prior review by the Bank.
7.
The procurement procedures and SBDs to be used for each procurement method, as well
as model contracts for works and goods procured, would be available for IDA review by
effectiveness.
8.
Operating Costs: Incremental recurrent expenditures during project implementation,
including maintenance of vehicles, fuel, equipment, office supplies, utilities, consumables,
banking charges, advertising expenses, internet service, car insurance, travel, per diems, and
accommodations, but excluding salaries of civil and public servants, will be procured using
the implementing agency's administrative procedures reviewed and found acceptable by the
Bank. All training programs, seminars, workshops, etc., will be procured based on the annual
training plans [(part of the annual work plan and budget (AWPB)] subject to the Bank's review.
The AWPB will identify the general framework of training and similar activities for the year,
including the nature and objectives of training and study tours, conferences, workshops, the
number of participants, cost estimates, and the translation of the knowledge gained in the actual
implementation of project components.
B. Assessment of the agency’s capacity to implement procurement
9.
The MOE procurement rules respond to the Public Procurement and Concessions Act
(PPCA) of Liberia, which was enacted in 2005, and provides a good legal framework for the
91
conduct of transparent and comprehensive procurement. The Act has provisions against bribery
and corruption; however, because the penal law makes both parties liable for bribery, it is
difficult for bribery to be reported. The Act also provides for the compilation and publication of
code of conduct for procuring entities, public officials and their representatives and, further,
provides for administrative and judicial reviews. In response to the PPCA, the MOE as a
procurement entity has the required structures, i.e. a procurement unit and a procurement
committee. Further, ad hoc evaluation panels are set up to evaluate bids and make
recommendations to the Procurement Committee, as required by law, whenever there is a
process that involves competition. The procurement and supply management functions are
clearly distinguished, and the MOE now has auditing arrangements in-house. In addition, it has
clear technical and administrative controls for reviews, approvals and decision making.
10.
Currently, the MOE’s Procurement Unit key staff, their designations, qualifications and
procurement training are as shown in the table below.
Staff
1
Designation
Procurement
Director
Qualifications
BSc. (Political
Science, MSc.
(Regional Planning)
2
Assistant
Director
B.BA, Management
3
Acting
Procurement
Specialist
Procurement
Officer
(MSc Economics)]
4
5
6
7
8
Warehouse
Manager
Warehouse
Coordinator
Warehouse
Clerk
Filing Clerk
Procurement Training
 PPCC: Goods & Equipment Proc.
Mgmt (Feb 21-Mar 6, 2007)
 CMC/WB: Proc Training
Workshop (10-18 Mar, 2005)
 GSA: procedures for Acquisition of
Supplies under Bulk Purchasing (2day)
 IPAM/NPPA: Public Procurement
Management (24Sept – 11 Oct,
2007)
 IPAM/NPPA: Public Procurement
Management (24Sept – 11 Oct,
2007)
None
High School
Diploma/Freshman U
of Liberia
BBA, Management
Yes, but specifics not defined
High School
Diploma/University
student
Senior Student, U of
Liberia
High School Diploma
None
None
None
None
11.
Current responsibilities revolve around the procurement activities undertaken in response
to the PPCA. Earlier experiences in managing donor funds came under Education Pooled Fund
(UNICEF and Soros foundation/OSI) in support of the LPERP. However, these relatively small
donor-funded projects used mainly shopping procedures that did not call for the use of
comprehensive donor procurement guidelines. Record keeping is considered poor; the Director
of Procurement specifically requested training assistance in this area, and also in stores
management. Further, because of the legal requirement to implement the law on Public
92
Procurement and Concessions in both civil and public services, there appears to be good
awareness of the law.
12.
The MOE has significant experience in procurement using shopping procedures; the Unit
also has some experience in bidding under the PPCA. The Unit’s experience in the use of
comprehensive guidelines under donor funding is limited. The MOE’s Procurement Unit
developed some workplace capacity and skills recently with the preparation of the construction
program financed under the pooled fund starting from procurement planning and managing
bidding and selection processes including preparing bidding documents, advertising for bids or
issuing proposals, receiving bids or proposals, opening bids or proposals, evaluating bids or
proposals, making recommendations for awards, contracting and managing contracts. The MOE,
therefore, has some knowledge and experience in procurement cycle management but not yet in
terms of international procurement.
13.
Current MOE procurement activities are mainly restricted to activities in relatively small
value goods & services and therefore the Procurement Unit does not have sufficient procurement
depth for goods, works and services, and management of processes for international competitive
bidding and large services contracts. The Unit, therefore, does not have the full capacity to
deliver on procurement for goods, works and services as envisaged in the project. It also has a
weak training base, which is a barrier for the succession planning and sustainability of the Unit.
14.
It is concluded from the assessment that the MOE is in compliance with the Liberian
Public Procurement and Concessions Commission Act. It has a procurement committee and a
procurement unit with four officers with good academic backgrounds, two of whom have had no
procurement training. Further, it has adequate internal technical and administrative controls and
anti-corruption measures and appeal mechanisms for bidders as required under the PPCC Act.
The Unit has poor quality staff in terms of qualifications and training to cater for the future of the
Unit. Again, the Unit has been involved in managing small amounts of donor funds; however, it
lacks the requisite experience in managing goods, works and services, under donor-funding,
which call for the use of comprehensive donor procurement guidelines.
15.
The key risk to procurement in Liberia is the general lack of procurement capacity; this
has had very serious implications for project implementation and disbursements, since
procurement has to be undertaken before disbursements can be made.
16.
The specific key risks for MOE procurement are related to the fact that the MOE staff has
not had the opportunity to engage in procurement of goods, works and services under
comprehensive donor guidelines including IDA. Further risks are identified in the weak
qualifications and training base for the subordinate staff.
17.
The overall procurement risk is high.
18.
There is a need to recruit two procurement specialists within the PST to provide the
required guidance, coaching and mentoring to the staff of the Unit for at least twelve to eighteen
months. These key risks, the mitigation measures, the actors and implementation timeframes are
captured in the table below.
93
Table 9: Key fiduciary risks and mitigation actions
No
1
19.
Key risk
Lack of opportunity to have a
more experienced Procurement
Specialist to “look over the
Unit’s shoulder” to provide
guidance, coaching and
mentoring to instill the
confidence needed in conducting
procurement.
Mitigation Actions
Recruit two procurement
specialists for at least 12 to 18
months to provide the required
guidance, coaching and mentoring
to the MOE staff to instill the
confidence needed in conducting
procurement.
By Whom
MOE
upon
discussions
By When
By
effective
date
and
agreement
by the
TTL
The proposed action plan to address the deficiencies in the assessment is as follows:
i. There is an urgent need for MOE to recruit two procurement specialists to
provide procurement support to MOE for at least twelve to eighteen months.
They will be part of the PST.
ii. Prior to the commencement of project implementation, a Project
Operational/Implementation Manual should be prepared that would, among
others, confirm the organizational arrangement for the management of
procurement; provide detailed terms of references for the staff, and the
functional relationships and interaction between the project’s staff responsible
for procurement and the relevant units for administration and finance. In
addition, the manual would offer clear instructions and guidance for the
management of procurement records.
iii. At project start-up, an orientation of the staff on the principles of good
procurement planning and practice, including discussions on procurement
arrangements under the project, may also be provided by the procurement
specialist. This would also be followed with the specialist’s participation in
sessions for annual work plans and budgets, procurement planning, etc. and
overall procurement support to MOE.
20.
With these in place, and with the World Bank providing reviews and No-Objections, as
required, the CF can be successfully implemented.
C. Procurement Plan
21.
The Borrower, at appraisal, developed a procurement plan for project implementation
which provides the basis for the procurement methods. This plan has been agreed between the
Borrower and the World Bank on July 23, 2010 and is available in the MOE, Department of
Administration. It will also be available in the project’s database and in the Bank’s external
website. The Procurement Plan will be updated in agreement with the Project Team annually or
94
as required to reflect the actual project implementation needs and improvements in institutional
capacity.
22.
The Borrower will prepare and furnish to the World Bank for its approval, no later than
April 15 of each year during the implementation of the project an Annual Work Plan and Budget,
and an updated Procurement Plan containing all eligible project activities and expenditures
planned for the following government fiscal year.
Thresholds**, Procurement Methods, and Prior Review
No
Expenditure
Category
Contract Value
Threshold**
2
3
Contracts Subject to
Prior Review /(US$)
ICB
All contracts
100,000=<C<3,000,000
NCB
Specified contracts as would be
identified in the approved
Procurement Plans
C<100,000
Shopping
Prior reviews of first 5 contracts
All Values
Direct Contracting
All Contracts
C>=500,000
ICB / LIB
All contracts
50,000=<C<500,000
NCB
/UN Agencies
Specified contracts as would be
identified in the approved
Procurement Plans
C<50,000
Shopping
Prior reviews of first 5 contracts
All Values
Direct Contracting
All Contracts
C>=200,000 (firms)
QCBS / QBS
All contracts
100,000=<C<200,000
(firms)
LCS, FBS, and
CQS
All TORs by TTL and prior
review for first 3 contracts
C>=50,000 (individuals)
IC
All contracts
IC
Only TORs (Except for the
hiring of Lawyers and
Procurement Specialists).
SSS
All contracts
C>=3,000,000
1
Procurement
Method
Works
Goods and
services
other than
Consulting
Services
Consulting
Services
C<50,000 (individuals)
All values
Training,
Workshops,
Study Tours
Based on
approved Annual
4
All Values
Approved by TTL when due
Work Plan &
Budgets (AWPB)
**These thresholds are for the purposes of the initial procurement plan for the first 18 months (July 1 – December
2011). The thresholds will be revised periodically based on re-assessment of risks.
95
D. Frequency of Procurement Supervision
23.
In addition to the prior review supervision to be carried out from Bank offices, the
capacity assessment of the implementing Agency has recommended three supervision missions
each year to visit the field to carry out post-review of procurement actions. The procurement
post-reviews should cover at least 20 percent of the contracts subject to post-review. In addition
post-reviews of in-country training will be conducted from time to time to review the selection of
institutions, facilitators, course contents of the training, and the justifications thereof, and costs
incurred.
24.
Technical Audit: A technical audit will be performed by a consultant at the start of the
project and again at the end of the second year of implementation to ascertain whether the
number and types of learning materials purchased are actually delivered to the schools and being
effectively used in the classrooms.
25.
Contracts Disbursements Status Reports: As part of the project reports, the MOE will
submit contract management and expenditure information in quarterly reports to IDA. The
procurement management report will consist of information on procurement of goods, works and
consultants’ services and compliance with agreed procurement methods. The report will compare
procurement performance against the plan agreed at negotiations and, as appropriate, update at
the end of each quarter. The report will also provide any information on complaints by bidders,
unsatisfactory performance by contractors and any information on contractual disputes.
26.
Publication of Awards and Debriefing: Publication of results of the bidding process for
all ICB goods and works, and also for consultant contracts estimated at US$200,000 and above,
in response to paragraphs 2.60 and 2.65 of the World Bank’s “Guidelines: Procurement under
IBRD Loans and IDA Credits” dated May 2004 and revised in October 2006 and May 2010; and
paragraphs 2.28 and 2.29 of the “Guidelines: Selection and Employment of Consultants by
World Bank Borrowers” dated May 2004 and revised in October 2006 and May 2010.
Publication of all other procurement activities, including debriefing and review shall be subject
to the relevant stipulates in the Liberian Public Procurement and Concessions Law of 2006.
27.
Fraud and Corruption: All procuring entities as well as bidders and service providers, i.e.
suppliers, contractors and consultants, shall observe the highest standard of ethics during the
procurement and execution of contracts financed under the project in accordance with paragraphs
1.14 of the Procurement Guidelines and paragraphs 1.22 of the Consultants Guidelines.
E. Details of the Procurement Arrangements Involving International Competition and
other Large Value Contracts
28.
List of contract packages to be procured following ICB and direct contracting. ICB goods
and works contracts estimated to cost above US$500,000 and US$3.0 million per contract
respectively will be subject to prior review by the Bank, unless as modified by the requirements
of the approved procurement plans. Further, all direct contracting will also be subject to prior
review by the World Bank.
96
Goods and Works and Non-Consulting services
1
2
3
4
5
6
7
8
9
Ref. No.
Contract
(Description)
Estimated
Cost
(US$)
Procurem
ent
Method
Prequalifi
cation
(yes/no)
Domestic
Preference
(yes/no)
Review
by Bank
(Prior /
Post)
Expected
BidOpening
Date
Comments
Increasing access and equity in rural areas
16 (No) Primary
880,000
schools to be
constructed in
(16
shopping @
remote
$55,000
communities
Shopping
No
No
Prior
review for
the first 5
contracts
No
Prior
Review for
first 5
contracts
No
Prior
Review for
first 5
contracts
21-Jan-11
During the
entire implementation
period
20-Nov-10
During the
entire implementation
period
1-Nov- 10
During the
entire implementation
period
05-Dec10
During the
entire implementation
period
each)
24 (No) Primary
schools to be
constructed by
contractors
2,760,000
(24 NCBs @
NCB
No
$115,000
each)
20 (No) Junior
secondary schools
to be constructed
by contractors
7,200,000
(20 NCBs @
NCB
No
$360,000
each)
Improving the conditions for teaching and learning
Textbooks for
Grades 5-9
5,500,000
ICB/LIB
No
No
Prior
During the
entire im1,500,000 ICB/LIB
No
No
Prior
05-Dec-10
plementation
period
Equipment and
During the
furniture for
entire im1,080,000 ICB
No
No
Prior
09 -Nov-10
Junior High
plementation
Schools
period
Strengthening central and local levels to operate in a decentralized education system by developing management and
monitoring and evaluation capacities
During the
7(No) Vehicles
NCB/
entire im210,000
No
No
Prior
14-Nov-10
UNOPS
plementation
period
Various goods for
PST and MOE
During the
(computers,
entire imprinters, air
500,000
NCB
No
No
Prior
14-Nov-10
plementation
conditioners,
period
stationary,
furniture, etc)
Teacher guides for
Grades 5-9
97
Selection of Consultants
29.
All large-value services contracts equal to or in excess of US$200,000 as well as all solesourced contracts for services will be subject to review by the Bank.
4. Consultancy Assignments with Selection Methods and Time Schedule
1
Ref.
No.
2
Description of Assignment
Increasing access and equity in rural areas
Management and supervision of
construction works, including
capacity building
3
Estimated
Cost
2,596,800
Improving the conditions of teaching and learning
TA for school grants system
200,000
development
4
5
6
7
Selection
Method
Review
by Bank
(Prior /
Post)
Expected
Proposals
Submission
Date
Comments
QCBS
Prior
21- Dec-10
During the
entire implementation
period
CQS
Prior
01-Dec-10
During the
entire implementation
period
ECD TA needs assessment to
500,000
QCBS
Prior
21-Dec -10
During the
develop strategy and quality tools
entire implementation
period
ECD pilot development and
160,000
CQS
Prior
21-Dec-10
During the
management- TA for needs
entire imassessment, management, and M&E
plementation
period
School health: de-worming and
375,000
Single
Prior
31-Jan-11
During the
teacher training by the World Food
Source
entire imProgram
(SS)
plementation
Contract to
period ; SS to
UN
World Food
Agency
Program needs
to be justified
School Health: teacher training
387,000
QCBS
Prior
31-Jan-11
During the
entire implementation
period
School Health: life-skills student
378,000
QCBS
Prior
31-Jan-11
During the
modules
entire implementation
period
Strengthening central and local levels to operate in a decentralized education system by developing management and
monitoring and evaluation capacities
M&E support for DEOs and basic
During the
education school principals
entire im1,701,600
Prior
11-Mar-11
QCBS
plementation
period
M&E support for basic education
During the
4,375,500
11-Jun-11
98
teachers and principals
QCBS
National assessment test for grades 4
and 7
900,000
Studies: teacher study and
development, regular salary payment
Prior
31-Jan-11
entire implementation
period
During the
entire implementation
period
During the
entire implementation
period
During the
entire implementation
period; SS
needs to be
justified
During the
entire implementation
period
During the
entire implementation
period
During the
entire implementation
period
QCBS
Prior
200,000
CQS
Prior
23-Aug-11
TA for West African Examinations
Council (WAEC) to carry out
national assessment
250,000
SS
Prior
31-Jan-11
Evaluation and audit
210,000
LCS
Prior
03-Jun-11
TA for personnel management
500,000
QCBS
Prior
31-Jan-11
Project Coordinator
288,000
IC
Prior
For three
years
Procurement Specialist (Int’l)
108,000
IC
Prior
For one year
Procurement Specialist (Local)
144,000
IC
Prior
For three
years
During the
entire implementation
period
Financial Management (Local)
144,000
IC
Prior
For three
years
Financial Management (Local)
144,000
IC
Prior
For three
years
M&E Specialist
252,000
IC
Prior
For three
years
Planning Specialist
216,000
IC
Prior
For three
years
During the
entire implementation
period
During the
entire implementation
period
During the
entire implementation
period
During the
entire implementation
period
30.
All contracts not subject to prior review will be post-reviewed.
99
100
Annex 9: Economic and Financial Analysis
LIBERIA: Fast Track Initiative Grant for Basic Education
Rationale of the CF
Links to Country Assistance Strategy (CAS) and Poverty Reduction Strategy (PRSP)
1.
The CF’s objectives are in line with the Joint Assistance Strategy (IDA and AfDB),
presented to the Board in 2009, and with Liberia’s PRSP introduced in March 2008. The Joint
Assistance Strategy pursues three strategic themes: (i) rebuilding core state functions and
institutions; (ii) rehabilitating infrastructure to jump-start economic growth; and (iii) facilitating
pro-poor growth. The government’s first full PRSP (2008–2011) has four core strategic areas of
intervention: peace and security; economic revitalization; governance and rule of law; and
infrastructure and basic services. In addition, it pursues a number of priority crosscutting
themes, including gender equity, peace-building, environmental issues, HIV and AIDS, children
and youth, and monitoring and evaluation.
Links to other sector work
2.
During the last two years, the World Bank has been supporting education (through EPDF
resources) in Liberia by providing technical assistance for capacity building in the MOE. A CSR
and ESP have been conducted jointly, with the former providing the necessary diagnostic and the
latter laying out the policy directions that are fully-costed. The ESP was endorsed in February
2010. A PEMFAR has been completed in 2008 and includes a chapter dedicated to the review of
public expenditures in education.
3.
In addition, knowledge and lessons are being drawn from the implementation of ongoing
World Bank projects. The current Community Empowerment Project (US$5 million) supports
the rebuilding of community cohesion and social capital in addition to much-needed community
infrastructure (including building/rehabilitation of classrooms). The Food Price Crisis Response
Trust Fund (US$4 million) includes the funding of school meals for 62,000 pre-school and
primary school children from vulnerable households in three targeted districts.
Social impact of education
4.
Improved access to education is generally seen to improve the probability of getting
better remunerated work, reducing the likelihood of poverty and social exclusion and providing
positive externalities of higher productivity growth and enhanced health. There is ample
evidence that these advantages hold in Liberia. In the subsequent paragraphs, the impacts of
education on people’s income and behaviors will be analyzed.
5.
Econometric models were utilized to assess the impacts of education on people’s income
and behaviours. These models combine independent variables such as age, sex, geographical
location, wealth index and health supply index in order to produce results “everything being
equal”.
Tables 28 and 29 below show the summary of some key results based on the models.
101
Tables 28 and 29: Social Impact of Education Results
Highes t grade completed
Primary cycle
Non
Average educated
2
Secondary
Higher Education
4
6
8
10
12
14
16
Probability of women (1549) literacy (%)
68.9
0.0
9.7
30.7
53.0
73.6
89.7
98.3
100.0
100.0
A ll
19.8
6.1
7.4
9.8
13.0
16.8
21.1
25.5
30.1
34.5
Women
22.9
6.0
8.4
12.2
16.7
21.6
26.3
30.3
33.3
34.6
M en
19.2
4.6
6.4
8.4
11.0
14.3
18.6
24.1
31.1
39.7
old
40-49 years
old
15-49 years
1.9
3.1
2.5
2.2
2.0
1.9
1.8
1.7
1.4
..
6.7
7.7
7.7
7.6
7.4
7.0
6.4
5.7
4.8
..
old
2.8
4.1
3.5
3.1
2.8
2.7
2.6
2.6
2.5
..
94.6
83.1
85.4
88.6
91.9
94.8
97.2
98.9
99.9
100.0
91.1
78.2
78.8
82.1
86.4
90.8
94.6
97.3
99.0
100.0
months after birth (%)
20-29 years
95.6
83.2
85.4
88.9
93.0
97.3
100.0
100.0
100.0
100.0
old
40-49 years
18.9
18.2
18.1
18.2
18.3
18.5
18.8
19.2
19.6
20.1
old
15-49 years
19.3
19.4
19.1
18.9
18.8
18.8
19.0
19.3
20.0
20.9
old
20-29 years
19.1
17.5
17.6
17.8
18.2
18.6
19.2
19.8
20.5
21.3
old
40-49 years
18.8
17.0
16.9
17.0
17.4
18.0
18.7
19.6
20.6
21.7
old
15-49 years
20.0
18.4
18.2
18.3
18.6
19.1
19.9
20.8
21.9
23.3
old
20-29 years
19.7
16.4
16.5
16.9
17.6
18.4
19.4
20.6
21.8
26.3
old
40-49 years
16.0
15.7
15.9
16.1
16.2
16.3
16.2
16.1
15.8
15.4
old
15-49 years
16.6
16.0
15.9
15.8
15.9
16.3
16.4
16.9
17.5
18.2
old
20-29 years
16.4
15.4
15.5
15.7
15.9
16.2
16.5
16.7
17.0
17.4
old
40-49 years
17.4
17.2
17.1
17.1
17.2
17.2
17.3
17.5
17.6
17.8
old
15-49 years
18.3
18.4
18.4
18.4
18.3
18.3
18.2
18.2
18.1
18.2
old
17.5
16.6
16.7
16.8
17.0
17.2
17.5
17.8
18.1
18.4
Us e of contraceptives
20-29 years
Total number
of live birth
Us e of iron tablets during
preganancy (%)
Us e of tetanus toxoid
during pregnancy (%)
Us e of Vitamin A firs t 2
Woman's age
at her firs t
birth
Woman's age
at firs t
marriage
Woman's age
at firs t s ex
encounter
M an's age at
firs t s ex
encounter
..
Lack of adequate observations or no observations
Source: Author’s calculations using the Liberia DHS, 2007
102
Highes t grade completed
Primary cycle
Non
Average educated
Total no. of live births
Knowledge of
HIV/A IDS
(s core over 6)
Tes ted for
HIV/A IDs
Secondary
Higher Education
2
4
6
8
10
12
14
16
2.8
4.1
3.5
3.1
2.8
2.7
2.6
2.6
2.6
2.6
A ll
2.3
1.2
1.7
2.1
2.3
2.5
2.6
2.6
2.6
2.6
M ales
2.4
1.0
1.6
2.0
2.4
2.6
2.7
2.7
2.7
2.7
Females
2.4
1.4
1.8
2.1
2.3
2.5
2.6
2.6
2.6
2.7
A ll
8.6
0.1
1.5
2.5
3.4
4.8
7.1
10.6
15.8
23.2
Females
2.6
0.8
1.1
1.8
1.7
..
..
2.0
3.9
7.4
M ales
8.2
0.8
1.6
2.7
4.1
6.0
8.2
10.9
14.2
18.0
Probability of antenatal
cons ultation (%)
98.5
94.5
96.6
98.0
98.7
99.0
99.0
98.9
98.7
98.7
A s s is tance at delivery by
s killed attendant (%)
71.2
34.6
37.7
45.1
55.4
67.7
78.8
89.1
96.5
99.6
child under five (%)
32.3
24.3
25.5
27.3
29.3
31.5
33.7
35.6
37.1
38.0
Stunting for children
under-five (%)
30.2
41.5
42.4
41.2
38.4
34.2
29.2
23.8
18.5
13.6
47.3
56.8
58.1
57.6
55.5
52.0
47.5
42.0
35.9
29.4
Fully immunis ation for
Breas tfeeding practices
(%)
..
Lack of adequate observations or no observations
Source: Author’s calculations using the Liberia DHS, 2007
Social impact of education: summary of main outcomes
Effect on Immunization
6.
There is powerful evidence that educational attainment is correlated with improved
immunization rates. Children born to uneducated mothers have significantly less chance of
receiving full immunization coverage than children born to educated mothers. Educated mothers
are twice as likely to have their children immunised than uneducated mothers. Surprisingly, a
not so significant gain of 5 percentage points is associated with primary education completion (6
years of schooling) compared to non-educated women. The marginal effect is 6 points for
secondary school completion (12 years schooling, compared to the end of the primary
education), indicating a higher efficiency rate of secondary school completion in terms of social
benefit.
Effect on stunting for children under-five
7.
Child stunting is associated with poor child development and increased mortality. The
odds of child stunting is 8 times higher for women with no formal education when compared to
mothers with a university degree. A not so significant gain of 3 percentage points is associated
with primary cycle completion (6 years of schooling) compared to non-educated women.
However, the significant gain of 15 points for secondary school completion (12 years schooling,
compared to the end of the primary cycle) indicates a higher efficiency rate of secondary school
completion in terms of social benefits.
103
Recent achievements in the education sector
8.
Over the past year, the following progress has been made through the implementation of
the LPERP. Overall, 198 schools were built and 58 renovated; 75,820 students enrolled in the
ALP (a program for over age children who are going through the primary education program in
three years rather than the standard 6 year program). 82,638 learners were provided with
furniture; 1.2 million textbooks and teacher’s guides have been procured and will be distributed
to the schools for the beginning of the school year. This will bring the student textbook ratio to
2:1; 324 in-service teachers received their “C” certificates and 400 trainees in the pre-service
program successfully passed their final examination; and reading assessment instruments are in
place to measure quality in the classroom. With World Bank and RTI/USAID support,
government has assessed reading levels in grades 2-3 in 180 schools. A school census report that
includes detailed information of all the schools in Liberia for school year 2007/08 has been
completed. It represents the main data reference for education. An EMIS exists and incorporates
the data from the school census.
Education financing
Public Spending on Education - Aggregate Trends and Distribution across Levels
9.
Since 2004 “average real spending for education has increased by 26 percent per year”
(PEMFAR, 2008)
Expenditure in Constant 1992
US$ millions
Figure 9: Total Public Spending on Education 2004/05 – 2007/08
16
14
12
10
8
6
4
2
0
Total Education Expenditure
2004/2005
2005/2006
Year
2006/2007
2007/2008
Source: Ministry of Finance, Annual Fiscal Reports - 2004/05, 2005/06, 2006/07 and 2007/08 as in 2007 PEMFAR
10.
The distribution of public funds across the different levels of education has tended to vary
across the years as the table below shows for 2004/05 to 2006/07. For those years, administrative
and support services and tertiary education consumed most of the funds with school level
education seemingly receiving a surprisingly small percentage. Since administrative and support
services are not provided equally for at the different levels, if this is appropriately distributed it
can impact significantly on level allocations.
104
Figure 10: Distribution of Public Spending on Education by Level - 2004/05 – 2006/07
100%
7.5
9.7
17.1
80%
60%
40%
20%
14.5
11.4
9.5
30.3
24.6
31.6
5.9
7.6
7.1
41.2
46.7
2004/2005
2005/2006
35.4
0%
Administrative and Support Services
Higher Education
2006/2007
Technical and Vocational Education
Secondary Education
Source: 2007 PEMFAR Author’s Estimate Data
11.
For 2007/08, more detailed analysis was carried out with administrative and support costs
being distributed across the different levels.
Table 30: Distribution of Public Spending on Education by Level - 2007/08
Adjusted Final
Pre-Primary
Primary
Junior High
Senior High
TVET
Teacher Training
Tertiary
Education
Total
Personal
Exp.
3,155,840
4,205,751
1,302,844
638,980
392,785
236,877
Goods and
Services
1,197,923
1,592,439
638,278
313,043
589,118
294,753
Transfers &
Subsidies
640,187
869,960
16,062
7,878
2,595,580
0
Total
Recurrent
4,993,949
6,668,150
1,957,183
959,901
3,577,482
531,630
Capital
802,191
1,040,481
427,823
209,826
23,428
95,750
% Total
Recurrent
22%
29%
9%
4%
16%
2%
50,468
9,983,545
86,330
4,711,884
3,969,379
8,099,045
4,106,177
22,794,473
53,202
2,652,701
18%
100%
Source: Ministry of Education, Ministry of Finance and Budget Bureau Data
12.
The chart below more clearly shows the distribution of public spending in 2007/08
inclusive of administrative and support costs.
105
Figure 11: Distribution of Public Spending on Education by Level - 2007/08
100%
90%
80%
70%
60%
50%
40%
30%
20%
10%
0%
Tertiary
Education
Tcher
, 18%
Trning, 2%
TVET, 16%
Senior High,
4%
Junior
High, 9%
Primary,
29%
PrePrimary,
22%
Source: Ministry of Education, Ministry of Finance and Budget Bureau Data
13.
In 2007/08, the share allocated for primary education (pre-primary, primary education
and teacher training) recurrent spending was 53 percent, while secondary education (and TVET)
received 29 percent.
14.
It becomes apparent that when administrative and support costs are distributed to the
appropriate levels, the percentage of public funds spent on each level changes. The suggestion
from Figure 11 is that insufficient public funds are being allocated to the secondary level and
teacher training. This is a source of concern given the large number of poorly and untrained
teachers in the system, the seeming inadequacy of the present teacher training program to even
meet current demand for new teachers, and the exploding enrollment and graduate numbers at
the primary level.
15.
When adjustment is made to a system structure of 6 years of primary and 7 years of
secondary education (the most common structure in sub-Saharan Africa), the distribution of
expenditure is as shown in the table below.
Table 31: Distribution of Public Spending on Education by Level after Adjustment to 6 Years Primary and 7
Years Secondary - 2007/08
Primary (+ Pre-Primary and Teacher
Training)
Secondary (+ TVET)
Higher Education
50.60%
31.40%
18.00%
Source: Ministry of Education, Ministry of Finance and Budget Bureau Data
16.
With the adjustments, it is worth noting that Liberia is seemingly giving due attention to
primary education and, in doing so, is meeting the EFA indicative target of approximately 50
percent of expenditures on primary education. Expenditure on secondary education is still of
concern as the percentage expenditure observed is due to the adjustment upwards from 6 to 7
106
years of schooling and the contribution of expenditure for TVET which is larger than for general
secondary education alone.
17.
Liberia compares very favorably with its neighbors and other post-conflict sub-Saharan
countries in terms of expenditure on primary education as the table below shows.
Table 32: Comparative Distribution of Public Spending on Education by Level for Selected West African and
Post-Conflict Countries
Country
Burkina Faso
Benin
Liberia
Gambia, The
Chad
Sierra Leone
Rwanda
Cote d'Ivoire
Sub-Saharan Africa Average
Guinea
Burundi
Senegal
Cameroon
Togo
Ghana
Mali
Guinea-Bissau
Nigeria
% on Prim (adjusted to
% on Sec (adjusted to %
6 years)
7 years)
60.3
17.5
50.7
27.2
50.6
31.4
49.8
25.8
49.6
29.1
48.2
29.8
47.1
23.9
46.6
32.7
44.4
34.3
44.4
30.8
44.4
28.1
44.4
27.9
40
45
40
39.7
39.3
39.1
35.3
48.4
33.3
43
29.1
51.2
Source: Authors’ Estimates Based on World Bank Data, 2008
on Higher
Ed
22.2
22.1
18
24.4
21.3
22
29
20.7
21.2
24.8
27.5
27.7
15
20.3
21.6
16.3
23.7
19.7
GDP per capita
2006
429.9
545.1
176.3
307.1
624.9
252.5
263.5
927.9
1,699.7
361.3
110.5
760.9
1,008.2
344.1
560.9
490.1
185.0
797.0
Current Recurrent and Capital Costs
18.
At each level of schooling, the largest part of current recurrent and capital costs is spent
on personnel as the table below shows.
Table 33: Percentage Distribution of Public Spending on Education by Level - 2007/08
Level
Pre-Primary
Primary
Junior High
Senior High
TVET
Teacher Training
Tertiary Education
Total
Personnel Exp. (Teachers
and Non-teachers)
54%
55%
55%
55%
11%
38%
1%
39%
Goods and
Services
21%
21%
27%
27%
16%
47%
2%
19%
Transfers &
Subsidies
11%
11%
1%
1%
72%
0%
95%
32%
Total
Recurrent
86%
87%
82%
82%
99%
85%
99%
90%
Capital
14%
13%
18%
18%
1%
15%
1%
10%
Source: Ministry of Education, Ministry of Finance and Budget Bureau Data
19.
The paucity of teaching and learning materials in schools as well as the shortage of
seating accommodation for students is a reflection of the percentage of spending on goods and
services. For tertiary education and TVET, the share of transfer and subsidies is as high as 95
107
percent. How the institutions spend the transfers and subsidies they receive is not known, since
they have the autonomy to use these funds as they see fit, but it is likely that a significant
percentage goes on personnel expenditure not directly paid by the government. It is highly
unlikely that the 1 percent paid directly to tertiary institutions for personnel expenditure is the
only amount spent for that purpose. The major part of funds received from the government goes
towards staff salaries. In primary education, the expenditure on salaries accounts for 55 percent
and is similar to the share for other sub-sectors such as pre-primary, junior high, and senior high
secondary education.
Teacher Cost Estimates
20.
As indicated in the preceding section, the majority of the spending on the different levels
of schooling is on personnel expenditure, especially teachers. It follows that spending on the
salaries of teachers significantly impacts on unit costs at the different levels. The table below
shows the staff wage bill for different levels of schooling.
Table 34: Total School Staff Salary Bills Paid by the GOL and as Units of GDP per Capita by Level - 2007/08
Level
Pre-Primary
Primary
Junior High
Senior High
NonTeachers’
Average
Salary
Adjusted
(Annual US$)
Adjusted
NonTeachers’
Bill (Annual
US$)
Adjusted Average
Teachers’ Salary
(Annual US$)
Adjusted
Teachers’
Bill
(Annual
US$)
483
490
502
534
469,967
597,081
187,225
96,310
568
576
590
627
1,927,060
2,413,249
737,943
357,439
Adjusted
Average
Annual
Teachers'
Salary as Units
of GDP per
Capita
5.59
5.67
5.81
6.17
Total Annual
Staff Bill of
Schools
(US$)
2,397,027
3,010,330
925,168
453,749
Source: Authors’ estimate based on Ministry of Education, Ministry of Finance and Budget Bureau Data
21.
Average teacher salary in Liberia increases as the schooling ladder is ascended but
because of the basic flat-rate payment for civil servants in the country, the difference between
levels is quite small. The difference in average salary of the different levels is largely due to the
difference in the number of unqualified teachers. This means that teachers have little incentive to
stay in the profession and/or to improve their qualifications.
22.
With the anticipated increases in GDP, slight increases in salary would be possible
without increasing the ratio. Some increase in the salary of primary school teachers is advisable
as it could contribute positively to the achievement of EFA through helping to attract and retain
better quality teachers in the system. In fact, the government has announced an increase in
teachers’ salaries but has yet to follow through on this announcement. Comparison of the
average salaries of teachers in Liberia relative to its GDP with that of other West African
countries across the different levels of schooling suggests that Liberian teachers are reasonably
paid relative to the wealth of the country and their counterparts in these other countries as shown
in the table below.
108
Table 35: Ratio of Average Teacher Salary to GDP per Capita in Selected West African and Post Conflict
Countries
Country
Burundi
Togo
Liberia
Burkina Faso
Nigeria
Cote d'Ivoire
Ghana
Senegal
Gambia, The
Mali
Guinea-Bissau
S/S Africa Average
Sierra Leone
Rwanda
Benin
Cameroon
EFA-FTI Benchmark
Primary Teachers
Salaries (GDP per
Capita)
7.8
6.1
5.7
5.2
4.9
4.8
4.7
4.7
4.5
4.5
4.4
4.0
3.9
3.9
3.6
3.6
3.5
Junior High
Teachers Salaries
(GDP per Capita)
9.3
8.9
5.8
9.3
7.2
7.7
4.7
5.5
6.5
6.8
6.6
5.9
5.9
5.9
3.0
6.5
Senior High
Teachers Salaries
(GDP per Capita)
11.0
9.0
6.2
13.0
7.2
4.8
7.1
6.5
8.3
2.2
7.6
5.9
6.4
5.2
13.0
GDP/Capita
2006
110.5
344.1
101.6
429.9
797.0
927.9
560.9
760.9
307.1
490.1
185.0
252.5
263.5
545.1
1008.2
Source: Authors’ Estimates Based on World Bank Data, 2008 and Ministry of Education, Ministry of Finance and Budget Bureau
Data
23.
It is worth noting from the above table that Liberia pays more, in relative GDP terms, to
its primary school teachers than most other neighboring and post-conflict countries but not quite
as much to its secondary level teachers. The purchasing power of the salary received is low and
this has implications for the quality of teachers in the system, given the relatively small pool of
individuals to recruit from and the competition for their services.
Spending Other than Teachers’ Salaries
24.
Getting the balance right between what is spent on salaries and what is spent on other
teaching / learning inputs is difficult. Current recurrent expenditure on inputs other than teacher
salary is shown in the table below.
Table 36: % of Recurrent Spending Other than Teachers’ Salaries and Personnel Expenditure by Level –
2007/08
Level
Pre-Primary
Primary
Junior High
Senior High
Teachers' Salary (%)
61.4%
63.8%
62.3%
62.8%
Share of Recurrent Spending Other than
Total School Staff Salaries (%) Total Personnel Expenditure (%)
52.0%
37%
54.9%
37%
52.7%
33%
52.7%
33%
Source: Authors’ Estimates Based on Ministry of Education, Ministry of Finance and Budget Bureau Data
25.
It is apparent that the salaries of teachers only account for approximately one-third of the
education expenditure at all levels but, when other school staff salaries are also taken into
account, a total of approximately one-half of recurrent expenditure is consumed. A further
109
reduction takes place when other personnel expenditures are taken into account, leaving just over
one- third of recurrent funds for teaching and learning materials as well as other necessary
inputs. Additionally, many public and community schools employ teachers who are not paid
from government funds but rather from contributions by community members or not paid at all.
The cost of this category of teachers is not known.
26.
Given that the EFA FTI benchmark for “spending on inputs other than teacher’s salary as
% of total recurrent spending” is 33 percent for the primary level, it follows that some room
exists for improving the salaries of teachers even with the subsidies going to public and
community schools in support of ‘free’ primary education. However, there is no reporting on
what these subsidies are being spent on. In addition, care needs to be taken so that the ratio of
salary to GDP does not become unreasonably high.
27.
As more teachers undergo training and the high percentage of untrained and volunteer
teachers in the system is reduced, the share of recurrent expenditure consumed by the salaries of
teachers is expected to increase. Additionally, the student enrollment in public schools is
expected to increase and result in the need for more teachers as well as other inputs. Lastly, with
the soon-to-be introduced salary scale for teachers, an overall increase in the percentage of
recurrent expenditure going to the salaries of teachers is anticipated.
Table 37: Comparative Distribution of Public Spending on Education by Level for Selected West African and
Post-Conflict Countries
Country
Burkina Faso
Benin
Liberia
Gambia, The
Chad
Sierra Leone
Rwanda
Cote d'Ivoire
Sub-Saharan Africa Average
Guinea
Burundi
Senegal
Cameroon
Togo
Ghana
Mali
Guinea-Bissau
Nigeria
% on Prim (adjusted to
6 years)
60.3
50.7
50.6
% on Sec (adjusted to
7 years)
17.5
27.2
31.4
% on Higher
Ed
22.2
22.1
18
GDP per capita
2006
429.9
545.1
176.3
49.8
49.6
48.2
47.1
46.6
44.4
44.4
44.4
44.4
40
40
39.3
35.3
33.3
29.1
25.8
29.1
29.8
23.9
32.7
34.3
30.8
28.1
27.9
45
39.7
39.1
48.4
43
51.2
24.4
21.3
22
29
20.7
21.2
24.8
27.5
27.7
15
20.3
21.6
16.3
23.7
19.7
307.1
624.9
252.5
263.5
927.9
1,699.7
361.3
110.5
760.9
1,008.2
344.1
560.9
490.1
185.0
797.0
Source: Authors’ Estimates Based on World Bank Data, 2008
Disparity in Household Spending on Education by Income Group
28.
Households spend significant amounts on all levels of education, even with the
introduction of ‘free’ primary education.
110
Table 38: Per Student Expenditure on Education by Wealth Quintile and Level of Education in US$ 2006/2007
Level
Primary Education
Secondary Education
Higher Education
All
Q1
8.3
20.1
307.9
13.8
Q2
12.5
33.6
381.6
20.9
Q3
17.9
45.6
210.3
29.7
Q4
25.8
54.9
171.1
41.6
Q5
35.8
74.8
180.4
57.6
Unit Cost - Household Spending on Education
19.9
48.2
199.2
33.4
Source: Estimates based on the 2007 CWIQ Survey in WB PEMFAR 2008
29.
At the school level, the table above shows that household spending per student increases
with the wealth of the household. At the tertiary level, per student expenditure on education is
greater for the two poorest quintiles (Q1 and Q2) than the two wealthiest (Q4 and Q5). A
contributory factor to the noted disparity is the fact that children of wealthier families tend to be
in the majority at the tertiary level and many benefit from scholarships. Students from household
in the two poorest quintiles appear to be disadvantaged in terms of scholarships leaving their
parents to bear more of the costs. While actual expenditures on education by the poorest
households are lower at the school level than that of richest households, the former, in fact,
spend a greater percentage of their total per capita household expenditure on primary and
secondary education.
Cost Benefit Analysis
30.
We undertook a standard cost benefit analysis of the school construction program. To do
so, we compared investment spent now along with recurring functioning costs to the sum of
expected future wage increases an individual will benefit from as a result of primary school
completion.
111
31.
Under the usual assumptions, labor market benefits will exceed cost after 5 years at the
secondary education level and 7 years at the primary level. We would like to highlight that
program efficiency will depend heavily on the future growth rate. Skills learnt at primary school
will indeed be more valuable if Liberia’s economy performs well whereas investment cost spent
in USD will not be affected. These direct financial benefits are in addition to effects on social
outcomes such as better health or improved childcare that are more difficult to monetize.
Table 39: Cost Benefit Analysis for School Construction Program
year
1
2
3
4
5
6
7
8
investment cost
5315266.7
4551933
3938600
total number of pupils
in new primary schools
14400
14400
14400
14400
14400
14400
14400
14400
144000
151200
158760
166698
175032.9
183784.5
192973.8
202622.5
0
0
0
0
0
0
2400
4800
0
0
0
0
0
0
264253.2
554931.6
total number of pupils
in new secondary schools
1500
1500
1500
1500
1500
1500
1500
1500
Total recurrent
Jr High-schools
22500
23625
24806.25
26046.56
27348.89
28716.34
30152.15
31659.76
Extra number of secondary
educated
individuals on labor markets
0
0
0
500
1000
1500
2000
2500
Wage
benefits
secondary education
0
0
0
20269.06
42565.02
67039.91
93855.87
123185.8
-5481767
-5E+06
-4E+06
-157840
-141995
-125476
113046
360879
Total recurrent cost for
primary schools
Extra number of primary
educated
individuals on labor markets
Wage
benefits
primary education
from
cost
for
from
Discounted net benefits
Fiscal sustainability of the EFA-FTI Catalytic Fund
Objectives and Sustainability of Education Development
32.
A financial analysis was carried out to evaluate the attainability and sustainability of the
targets specified in the government’s ESP. The policy choices which aim to ensure the
sustainability of the plan are as follows:
Primary education: (i) gross intake rate (GIR) is projected to move from 109 percent in
2010/11 to 106 percent in 2012/13; (ii) net intake rate (NIR) is to move from 23 percent in
2010/11 to 38 percent in 2012/13; (iii) gross enrollment rate (GER) is projected to move from 94
percent in 2010/11 to 96 percent in 2012/13; at the same time, the net enrollment Rate (NER) is
to move from 46 percent in 2010/11 to 57 percent in 2012/13; (iv) the ratio of girls to boys
112
enrolled in primary schools is projected to move from 90 percent in 2010/11 to 91 percent in
2012/13; (v) repetition rate is projected to drop from 6 percent in 2010/11 to 5 percent in
2012/13; (vi) Completion Rate is projected to move from 68 percent in 2010/11 to 75 percent in
2012/13; (vii) Pupil Teacher Ratio (PTR) is projected to move from 47 in 2010/11 to 46 in
2012/13; (viii) Learning achievement tests in early grade reading and its equivalent in
mathematics are to be introduced and analysis of test scores will be used to monitor changes in
quality of the system and inform policy decisions as well as action.
Pre-primary education: (i) gross enrollment rate (GER) will decrease from 128 percent in
2010/11 to 116 percent in 2012/13, as increasing numbers of ‘over-aged’ children are removed
or prevented from entering the level.
Junior secondary education: (i) grade 7 access rate is projected to increase from 49 percent in
2010/11 to 54 percent in 2012/13; (ii) gross enrollment rate (GER) will increase from 47 percent
in 2010/11 to 52 percent in 2012/13; (iii) ratio of girls will increase from 82 percent in 2010/11
to 85 percent in 2012/13 as more girls are persuaded to continue with their education; (iv)
repetition rate will decrease from 6 percent in 2010/11 to 5 percent in 2012/13; (v) survival rate
will increase from 81 percent in 2010/11 to 83 percent in 2012/13; (vi) completion rate will
increase from 40 percent in 2010/11 to 45 percent in 2012/13; (vii) average number of hours of
instruction per week will increase from 22 hours in 2010/11 to 22.5 hours in 2012/13.
Senior secondary education: (i) grade 10 access rate will increase from 30 percent in 2010/11
to 35 percent in 2012/13 as more students complete junior high school and are motivated to
move beyond basic education; (ii) ratio of girls to boys enrolled will increase from 74 percent in
2010/11 to 78 percent in 2012/13; (iii) survival rate will increase from 82 percent in 2010/11 to
83 percent in 2012/13; (iv) completion rate will improve from 25 percent in 2010/11 to 29
percent in 2012/13; (v) average number of hours of instruction per week will increase from 25
hours in 2010/11 to 26 hours in 2012/13.
Higher education: (i) Higher education students per thousand of population will gradually
increase from 802 in 2010/11 to 803 in 2012/13 as greater attention is given to improving quality
and controlled growth; (ii) Improve on the regulatory and governance mechanisms for higher
education; (iii) improve on the funding mechanisms for higher education; (iv) Improve on the
quality of the teaching staff; (v) Put in place mechanisms that result in programs on offer and
research conducted in institutions of learning being relevant to the needs of the society.
Financing the medium term plan (2010/11-2012/13)
33.
The table below estimates the total recurrent and investment financing gap for basic
education. Based on the scenario proposed in the medium term plan, a financing gap has
emerged in the amount of US$1.5 million for recurrent costs and US$48.1 million for investment
costs. The CF is projected to cover approximately 20 percent of the overall program costs.
113
Table 40: ESP Medium Term Plan Costs and Financing, 2010/11-2012/13*
ESP COST AND FINANCING: BASIC EDUCATION (US$ millions)
2010/11
2011/12
2012/13
Total
Annual
Average
71.2
73.6
80.8
225.6
75.2
Investment
45.8
44.2
45.0
134.9
45.0
Recurrent
25.4
29.4
35.9
90.7
30.2
55.1
58.5
62.3
176.0
58.7
Investment
29.7
29.1
27.9
86.8
28.9
Recurrent
25.4
29.4
34.4
89.2
29.7
28.6
32.0
35.8
96.4
32.1
Investment
5.2
5.6
5.4
16.2
5.4
Recurrent
23.4
26.4
30.4
80.2
26.7
26.5
26.5
26.5
79.6
26.5
Investment
24.5
23.5
22.6
70.6
23.5
Recurrent
2.0
3.0
4.0
9.0
3.0
16.0
15.1
18.5
49.6
16.5
Investment
16.1
15.0
17.0
48.1
16.0
Recurrent
0.0
0.0
1.5
1.5
0.5
Financing gap % of total cost
23%
20%
23%
22%
22%
Recurrent gap % of total gap
0%
0%
8%
3%
3%
Donor financing % of total cost (committed)
37%
36%
33%
35%
35%
Donor financing % of total cost if gap is filled
60%
57%
56%
57%
57%
Total Cost
8.9%
8.5%
8.1%
19.2%
8.5%
Government Resources
3.2%
3.3%
3.2%
7.4%
3.3%
Donor resources (committed)
3.9%
3.6%
3.2%
8.0%
3.6%
Donor resources if gap is filled
5.7%
5.2%
4.8%
11.8%
5.2%
10.7%
11.2%
12.4%
26.6%
8.9%
TOTAL COST BASIC EDUCATION
TOTAL RESOURCES BASIC EDUCATION
Government
Donors
FINANCING GAP BASIC EDUCATION
As % of GDP
Recurrent As % of Public Recurrent Expenditure
*Note: Basic Education includes pre-primary, primary, JHS and adult literacy.
114
Annex 10: Safeguard policy issues
LIBERIA: Fast Track Initiative Grant for Basic Education
OP 4.01 Environmental Assessment
1.
From an environmental and social safeguards point of view, this project is a Category B
project. This is because the environmental and social impacts are expected to be minimal, sitespecific and manageable to an accepted level. There are two World Bank safeguards policies
applicable to the project: OP 4.01 (Environmental Assessment) and OP 4.12 (Involuntary
Resettlement) due to potential negative environmental and social impacts related to the
construction of schools.
2.
To address the potential negative environmental and social impacts, the project prepared
an Environmental and Social Management Framework (ESMF) because the precise locations of
the schools and the potential localized impacts could not be identified prior to appraisal. The
ESMF will be applied by qualified personnel from the Environment Impact Assessment Unit of
the National Environment Agency, who will be consulted by the Ministry of Education at the
time when plans for the construction of schools are made to ensure that potential environmental
and social impacts are identified, assessed and mitigated appropriately. Thus, the ESMF (i)
describes steps 1-7 of the environmental and social screening process; (ii) includes an
environmental checklist to be applied/amended by qualified personnel as appropriate; (iii)
provides generic draft terms of reference for an environmental analysis, should one be required;
and (iv) it summarizes the Bank’s operational policies to ensure that these are taken into account
during project implementation as required. Furthermore, the ESMF includes provisions,
including costs estimates, for environmental management capacity building to ensure effective
implementation of the ESMF; these costs will be incorporated into the project cost tables. To
ensure adequate monitoring of the implementation of the ESMF and the RPF, the Recipient
institution responsible for environmental management, i.e. the National Environment Agency,
will be charged with the responsibility of supervising implementation and sharing their findings
with the Bank and other interested parties.
Environmental Issues and Impact
3.
These impacts are likely to be very minor with regard to resettlement as the project will
focus on sites with makeshift structures that need to be rebuilt. Thus most of the construction
would be rehabilitation of existing schools. In such instances, the new structure can be located
close enough to the original structure so that acquiring new land will not be necessary. This
means that the same plot of land would be used. Also, communities in Liberia most often see the
donation of communal land to the government for school sites as one of the inputs that they can
make to school construction.
Possible Negative Environmental Impacts from Component One
4.
The ESMF identified the major issues and impacts associated with the implementation of
the project. The construction of new buildings, rehabilitation and reconstruction of schools to
will have potential impacts on the following environmental components during the
preconstruction, construction and post construction phases: physical environment; environmental
115
quality; ecological resources; and health and safety. As there may be new land acquisition
involved, involuntary resettlement issues will be addressed. There may also be squatters at sites
perceived to be abandoned.
Two potential indirect impacts arise from:
5.
(a) Migration into the project area by people associated with the project (relations of
pupils, teachers, workers etc). There are also petty traders and other persons who may be
dependent on the social services provided (Water and Sanitation facilities). The classrooms may
also be used for meetings; (b) population increase will put pressure on available social services
in the villages/towns. There may be antisocial behavior which may lead to conflicts. There is
also emotional attachment to permanent loss of land for project activities. The impacts depend on
the scale and extent of the project.
6.
Mitigation measures include: (i) the project should be done on land that is not purchased
by looking into the following alternatives: (a) construction at old sites; (b) construction on
Government/Community land; (ii) increase in number of persons from among communities
providing local labor; (iii) increase in use of materials obtained locally; (iv) consultative
meetings at various stages in the implementation of the project.
Capacity Building
7.
A qualified firm of civil works consultants (selected through an International Competitive
Bidding process) is employed to both manage and supervise the construction program for all
types of schools. The consultants should however not only supervise the construction of the
schools but during the construction process they should use and train local engineers and
architects in the management and supervision of the construction program so that at the end of
the CF there will be a number of competent Liberian civil works professionals capable of
managing and supervising similar projects in the future. Moreover, the civil works firm will
monitor and supervise all construction and write a summary report on a quarterly basis. The
Department of Planning and the Minister of Education will be responsible for selecting the
school sites based on the EMIS and school mapping. The Environmental Protection Agency
(EPA) will be consulted to ensure that all safeguards issues are addressed (environmental impact
and resettlement policy framework).
8.
Due to limited capacity within the country to plan and implement the measures described
in the ESMF, the borrower should undergo training on environmental management as is
described in the ESMF Section 10 on Capacity Building. Capacity building training needs
section of the ESMF, identified two categories of stakeholders: 1) Managers including officials
of MOE, Ministry of Public Works, District Environmental Officer NGOs and Service Providers;
and 2) Local Communities including Clan Chiefs, Elders, Environmental Committees, Area
committees and Youth groups.
9.
Training programs shall be held on separate occasions for each of the two categories. The
training program for managers in category (i) shall be held in Monrovia and shall consist of one
complete module of nine days. Each complete module of nine days will cost USD 9,000. The
cost of this training, securing of environmental permits, mitigation, and monitoring are included
in the overall project costs.
116
OP 4.12 Involuntary Resettlement
10.
OP 4.12 was triggered due to the potential need for land acquisition which might lead to
the loss of assets, loss of shelter, loss of access to economic assets or loss of livelihood, requiring
that affected persons be compensated and/or resettled. To address potential negative social
impacts due to land acquisition, the project prepared a Resettlement Policy Framework (RPF)
and Environmental and Social Management Framework (ESMF) which were disclosed in Liberia
and at the Bank’s InfoShop prior to appraisal of the EFA-FTI CF Project.
Safeguards Reporting
11.
In cases of any activity requiring the adoption of an Environmental and Social
Management Plan (ESMP) or Resettlement Action Plan (RAP), the Borrower will (a) prepare
them in accordance with the ESMF or RPF, as the case may be, (b) submit to the World Bank for
review and approval, (c) adopt, prior to implementation of the activity and, (d) take such
measures as necessary or appropriate to comply with the requirements of the ESMP or RAP.
12.
Without limitation upon its other reporting obligations under the Grant Agreement, the
Borrower will regularly collect, compile and submit to the World Bank on a quarterly basis
reports on the status of compliance with the ESMF, RPF, and ESMPs and RAPs, if any, giving
details of: (a) measures taken in furtherance of such ESMF, RPF, and ESMPs and RAPs, if any;
(b) conditions, if any, which interfere or threaten to interfere with the smooth implementation of
such ESMF, RPF, and ESMPs and RAPs, if any; and (c) remedial measures taken or required to
be taken to address such conditions.
117
Annex 11: Project Preparation and Supervision
LIBERIA: Fast Track Initiative Grant for Basic Education
PCN review
Initial PID to PIC
Initial ISDS to PIC
Appraisal
Negotiations
Planned date of effectiveness
Planned date of mid-term review
Planned closing date
Planned
July 30, 2009
Actual
July 30,2009
August 7, 2009
August 7, 2009
March 1, 2010
July 22, 2010
August 23, 2010
March 31, 2012
June 30, 2013
Institutions responsible for the preparation of the project:
 Ministry of Education
 Ministry of Finance
 Ministry of Planning
Bank staff and consultants who have worked on the CF program
Name
Title
Unit
Nathalie Lahire
Task Team Leader /Education Economist
AFTED
Samuel Bruce-Smith
Financial Management Specialist
AFTFM
Norosoa Andrianaivo
Team Assistant
AFTED
Maxwell Dapaah
Financial Management Specialist
AFTFM
Albert Dupigny
Education Expert
AFTED
Priscilla A. Elms
HD consultant
AFTED
Victoria Gyllerup
M&E specialist
AFTRL
Daniela A. Braganca
Counsel
LEGAF
Junqueira
Anthony Mensa-Bonsu
Procurement Specialist
AFTPC
Michelle Neuman
Early Childhood Development Specialist
AFTED
Nyaneba Nhrumah
Environmental and Safeguard Specialist
AFTEN
Rose-Claire Pakabomba
Team Assistant
AFTED
Jonathan David Pavluk
Senior Counsel
LEGAF
Kristine Schwebach
Social Development and Safeguard Specialist
AFTCS
Atou Seck
Sr. Education Economist
AFTED
Rajiv Sondhi
Sr. Finance Officer
CTRFC
Andy Tembon
School Health Specialist
AFTHE
Nigel Wakeham
Architect, Consultant
AFTED
Bank funds expended to date on project preparation:
Bank resources:
Staff time (approximately 10 weeks)
EPDF:
US$250,000
Estimated annual supervision cost: US$100,000
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Donor partners who participated in discussions of this program
Name
Institution
Stella Kaabwe
UNICEF
Juan-Jose Casanova -Arasa
European Union
Luann Gronhovd
USAID
Stevenson Seidi
UNESCO
Aleesha Taylor
Soros/OSI
Rosio Godomar
WFP
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Annex 12: Sector Policy Letter
LIBERIA: Fast Track Initiative Grant for Basic Education
Education Sector Policy Letter – Republic of Liberia
A Commitment to Making a Difference
A Program to Develop and Reform Education in Liberia
2010 – 2020
1.
Background and Context
The period December 1989 to 2003 was one of relative chaos and mayhem in Liberia. Education
in particular was brought to its knees. School age children and youths were conscripted by all
fighting factions and became both victims and perpetrators of violence. Educational institutions
were targeted and many were destroyed or extensively damaged. Teachers abandoned their
schools and became fighters, displaced or refugees. Such education as was available was subject
to sudden and frequent pro-longed interruptions. Notwithstanding, this period saw the passage of
an Education Law together with a Master-plan for education and an Education For All Action
Plan. Sadly, neither of the latter documents was implemented because of the prevailing situation
at the time of their completion and both are now obsolete. This period also saw large scale
population shifts as non-combatants searched for places of relative safety. The capital city of
Monrovia in particular witnessed a significant population increase that has remained even with
the advent of peace.
The end of Year 2005 saw the holding of elections that heralded in the present government.
Prominent in the agenda of the new government is the establishment of a framework that would
allow implementation of the requirements of the 2002 Education Law focusing in particular on
those that concern primary education. In this regard, a plan titled the Liberia Primary Education
Recovery Program (LPERP) was prepared and ‘free’ education introduced at the primary level.
In Year 2007, Liberia submitted a request to the EFA-FTI Partnership for membership and funds
to support implementation of the LPERP. Membership was granted to Liberia but support from
the Catalytic Fund was not approved. Noting however the need of people of Liberia and the
importance of implementing the LPERP, UNICEF gave to Liberia funds that it had received
from the Netherlands. These funds were to be used to facilitate LPERP implementation and to
allow time for preparation and submission of a sector plan. This sector plan is now ready.
2. Sector Coordination
The Government of Liberia has launched a process of far reaching education reform starting with
the Liberia Primary Education Recovery Program (LPERP), guided by the Poverty Reduction
Strategy (PRS) and the recent completion of the 10-year Education Sector Plan 2010-2020
(ESP). There is need for improved coordination as the sector attracts greater funds and more
partners. This demands an institutional arrangement that provides a clear structure, with clear
policy and intervention monitoring tools as well as dedicated periodic evaluation. In order to
effectively address the priorities of the ESP, the government intends to strengthen the
institutional arrangements for education sector management. A Sector Coordination Team will
be created with additional expertise to augment that already possessed by the MOE. This will
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enhance the capacity of the MOE to perform its role effectively. It will also contribute to
increased MOE ownership and enable it to better lead the Education Sector partnership as well as
the development of the education sector of Liberia. As part of its functions, the Sector
Coordination Team will support the Executive Management Team to monitor and advice on the
utilization of external funds such as the EFA FTI CF and the existing Education Pooled Fund
(EPF) in a manner that will enhance the work of the Education Sector Development CommitteeExecutive Board (ESDC-EB) mentioned below.
The Education Sector Development Committee- Executive Board (ESDC-EB) will serve as the
oversight body to oversee the implementation of the ESP. The ESDC-EB will be chaired by the
MOE. This body will provide oversight of the policies laid out in the ESP by providing a forum
for policy dialogue and decision at the macro level. The ESDC-EB will include representatives
from the Ministries of Finance and Planning, as well as donor representatives.
3.
The Priorities of the Government of Liberia
The overall priority of the Government of Liberia (GOL) is to reduce poverty and to provide the
populace with a better life. In this regard it has developed a Poverty Reduction Strategy (PRS).
In the development of the PRS, large scale national consultations were held. The consultations
showed the populace to regard education as a sector deserving of the highest priority together
with job creation, infrastructure and health. The PRS states the GOL’s intention “to build a
public education system that provides better local control over schools, raises the quality of
teachers, and promotes learning achievement among all students” and gives as its main goal for
education “to improve access to and the quality of relevant education at all levels, emphasizing
the availability of Universal Primary Education and recognizing the needs of the disadvantaged,
especially girls.” The Education Sector Plan (ESP) is fully aligned with the PRS. It further
sharpens the focus of interventions in education and gives the main priority of government in the
sector as “significant progress towards the achievement of MDG and EFA Goal No.2 by 2015”.
In this regard, the goal of “ensuring that all children (especially girls, individuals with special
needs, street children, children with ‘manageable’ emotional behavioral disorders and learning
disabilities) start at the right age and complete primary level education of a minimum stipulated
quality” is pre-eminent.
Cognizant of the requirements for and consequences of success in making “significant progress
towards the achievement of MDG and EFA Goals No. 2”, the Government of Liberia also
prioritizes “improving the quality of the teaching staff and programs” at the primary and postprimary levels as well as “increasing access, retention and completion” at all levels but with a
special focus at the primary and junior high school (basic education) levels.
With knowledge of the fact that a significant number of individuals only complete primary or
basic education and a lack of manpower with needed technical skills, the GOL is also prioritizing
a multi-sectoral approach that would ensure an increase in the relevance and availability as well
as an improvement in the quality of skills training and TVET as a whole.
Given that the success of interventions in education is dependent on the quality of oversight and
management provided, high priority is also given to “developing the institutional capacity for
management at the central, regional and local levels”.
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4.
Policies and Key Strategies for Education Sector Development
4.1
Pre-Primary / Early Childhood Development Sub-Sector
In Liberia, pre-primary education is a sub-set of Early Childhood Development (ECD). The main
policy goal of the latter is to ensure that all children achieve their full potential and are ready for
primary schooling by providing quality, integrated ECD services and programs for all children
from zero to age 5 through an inter-sectoral collaborative approach.
The specific policy objectives are:
i. To increase access to early childhood development services for children aged 0 –
5years targeting the poor and most vulnerable.
ii. To improve the quality of all early childhood development services and programs in
the country.
iii. To support greater community and family involvement in provisions and programs
for those aged 0 to 5 years
iv. To establish mechanisms for greater collaboration and co-ordination between relevant
ministries, agencies and communities, in order to maximize the impact and
effectiveness of ECD programs.
The strategy related actions of highest priority in the short and medium term at this level are:
i. Abolition of testing of children to determine their eligibility to enter 1st grade in order to
free up spaces in pre-primary for younger children
ii. Production and implementation of a comprehensive policy on early childhood
development covering education, health, nutrition, protection, water and sanitation
iii. Preparation of a minimum standard document for day-care centers and educational
institutions and encouragement of partners and providers in all districts to establish
provision for early childhood development
iv.
Development of a teacher training program for the pre-primary level and a requirement
for all teachers at this level to obtain a qualification in pre-primary teaching or early
childhood development
v. Sensitization of traditional leaders, local government officials, providers, proprietors and
institutions on the importance of the early years and devise strategies to expand low-cost,
quality ECD options in their communities.
4.2
Primary Sub-Sector
The main policy goal for primary level education is the provision of resources necessary for all
school age children, and others so desiring, to receive and complete primary education of a
quality that adequately prepares them for the next stage/phase of living and learning. The ‘all’ is
inclusive of ‘special needs’ and ‘street children’ as well as those having ‘manageable’ emotional
behavioral disorders and learning disabilities
The specific policy objectives for primary education are:
i. To make the provisions necessary for all children (especially girls, individuals with
special needs, street children, children with ‘manageable’ emotional behavioral disorders
and learning disabilities) start at the right age and complete primary level education of a
minimum stipulated quality
ii. To put in place provisions and structures such that no individual is denied the possibility
of primary education because of age and/or circumstances
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iii.
iv.
v.
To put into operation a strategy and framework for greater efficiency and cost
effectiveness in primary schooling
To make those provisions and arrangements that result in the school environment being
clean, sanitary, violence-free and sufficiently conducive for all students, especially girls,
to feel safe and at ease
To reduce worm infestation as well as the possibility of staff and students at the primary
level contracting and/or spreading HIV/AIDS
The strategy related actions of highest priority in the short and medium term at the primary level
are:
i. The immediate cessation of entrance examinations for grade 1 applicants and cessation of
the refusing of entry to applicants of 6 years of age and above when space for admission
is available.
ii. Provision of training for more primary school teachers in order to achieve a PTR of 40:1
by 2020. At the same time this move should lower the Repetition Rate from 7 to 2
percent by 2020 and increase the Proxy Completion Rate from 62 to 100 percent by 2020
iii. Production of a rehabilitation and construction plan and strategy and
rehabilitation/construction of schools guided by latest Education Management
Information System and Population Census numbers as well reports from District
Education Officers and partners. This should make possible the accommodation of an
estimated additional 90,600 students in public and community schools in the period 2010
to 2015.
iv.
Implementation and enforcement of a school charges policy of which fee abolition and a
system of school grants is an integral part and provision of sponsorship or in-kind
contribution (e.g. uniforms) targeting students in extreme circumstances.
v. Review and revision of the primary school curriculum so that it is relevant, appropriate
and addresses major content and quality concerns including local language issues. This is
to be followed by the introduction of the revised curriculum to schools together with
needed teaching/learning materials, including the provision and supply of primary
textbooks and relevant teacher guides.
vi.
Development of a national assessment system to track and monitor progress in learning
outcomes.
4.3
Secondary Sub-Sector
The main policy goal for secondary level education is the provision of resources that would
allow all school age children, and others so desiring, to receive and complete a junior high school
program of quality. Further, that as many as can benefit and so wish, move on to and complete a
diversified broad base high quality senior high school program or its equivalent in readiness for
the next stage/phase of living and learning.
The specific policy objectives for secondary education are:
i. To increase access and the transition rate from primary to junior high school and from
junior high to senior high school;
ii. To increase the retention and completion rates of both levels of secondary education;
iii. To increase the number of girls accessing and completing secondary schooling;
iv.
To improve the quality of secondary education and the conditions of teaching and
learning;
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v.
vi.
To make those provisions and arrangements that result in the school environment being
clean, sanitary, violence-free and sufficiently conducive for all students, especially girls,
to feel safe and at ease;
To reduce worm infestation as well as the possibility of staff and students at the
secondary level contracting and/or spreading HIV/AIDS;
The strategy related actions of highest priority in the short and medium term at the secondary
level are:
4.3.1 Junior High School Level
i. Review and revision of the JHS teacher training program and the training of more
teachers;
ii. Production and implementation of a classroom rehabilitation and construction plan and
strategy. The intention being the provision of structures where none presently exist for
students completing primary education as well as the provision of accommodation for
increasing numbers of students transiting from the primary level;
iii. Production and implementation of a minimum standard guidelines for JHSs;
iv.
Production and implementation of a curriculum that is relevant, appropriate and addresses
major content and quality concerns;
v. Provision of student texts and teacher guides;
4.3.2 Senior High School Level
Same as those for the junior high school level except for (i) above which should read:
i. Establishment of a scheme to attract more graduates into the teaching profession;
4.4
Technical Vocational Education and Training (TVET)
The main policy goal for TVET is the provision of increased opportunities for the acquisition of
relevant and appropriate technical and vocational education and skills training of quality. In this
regard, a great deal of attention will be paid to ensuring that the TVET system not only meets
present private sector demand but anticipates and responds to changes. It is for this reason that
the objective of “improving the quality and relevance of TVET” and the strategy based action of
a “national labor market and employment survey followed by development of new TVET
curricula” are prioritized. Even whilst the frameworks are being developed, strengthening of key
institutions will take place through, amongst other things, provision of urgently needed
equipment and logistics for programs known to be addressing immediate private sector needs. At
the same time, establishment of links between key institutions and private business/industries
will be fostered.
The specific policy objectives for TVET are:
i. To bring together Ministries and agencies vested with responsibility for TVET in Liberia
so that they are able to work collaboratively and cooperatively;
ii. To improve the quality and relevance of TVET nationally and build links between TVET
and secondary education;
iii. To increase access to TVET programs nationally through the development of costeffective mechanisms/strategies;
The strategy related actions of highest priority in the short- and medium-term for TVET are:
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i.
ii.
iii.
iv.
v.
Establishment of an inter-sectoral governing body and secretariat responsible for
regulating TVET, and development of a training fund;
Drafting and implementation of a TVET policy;
Conduct national labor market and employment survey and develop new TVET curricula
based on findings;
Establishment of minimum standards for TVET institutions and regular monitoring and
evaluation of TVET institutions;
Rehabilitation, construction and equipping of strategically sited TVET institutions;
4.5
Teacher Education
The main goal for teacher education is the provision of competent, well-qualified and motivated
teachers for all educational institutions in Liberia.
The specific policy objectives for teacher education are:
i.
To provide adequate training and professional development programs for teachers at
the pre-primary to tertiary levels;
ii.
To put in place arrangements and a framework that result in teachers becoming
motivated and supported to carry out their responsibilities;
iii.
To make provisions for the deployment of teachers to rural and under-served areas
iv.
To upgrade the status of the teaching profession in Liberia;
v.
To increase the number of females in the teaching profession;
vi.
To improve efficiency in teacher management;
The strategy related actions of highest priority in the short and medium term for teacher
education are:
i. Development of curriculum for training of teachers at the pre-primary and the secondary
levels;
ii. Development and implementation of an in-service program to upgrade and update trained
teachers;
iii. Development and implementation of an affordable and sustainable distance education
program for serving untrained teachers;
iv.
Assignment of teachers to specific school levels and abolishing multi-level teaching;
v. Enforcement of a minimum number of hours per week to be taught by full time teachers;
vi.
Development and implementation of conditions of service and a salary scale for teachers
independent of that of other civil servants;
vii.
Development and introduction of a ‘remote area’ and ‘special subject’ allowance for
teachers;
viii. Development of a scheme to attract and retain more females in the teaching profession;
4.6
Higher Education
The main goal for higher education is better regulation and monitoring of higher education in
Liberia whilst ensuring at the same time an improvement in the quality and relevance of
programs and institutions of higher learning. Linked with this is the development of the research
capacity of universities.
The specific policy objectives for higher education are:
i.
To improve on the regulatory and governance mechanisms for higher education;
ii.
To improve on the funding mechanisms for higher education ;
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iii.
iv.
v.
To improve on the quality of the teaching staff;
To put in place mechanisms that result in programs on offer and research conducted
in institutions of learning being relevant to the needs of the society;
To reduce inequities in access to higher education;
The strategy related actions of highest priority in the short and medium term for higher education
are:
i. Strengthening of the capacity of the National Commission for Higher Education to enable
it to better perform its role and responsibilities;
ii. Conducting of a study on programs/courses on offer at universities, research capabilities,
as well as selection criteria for admission with a view to assessing their quality, relevance
and value and implementation of its recommendations;
iii. Conducting of an assessment on the competence, qualifications and relevant experience
of teaching staff in institutions of higher education with a view to improving staff quality
iv.
Establishment of ties between foreign universities of quality and national institutions with
a view to setting up program improvement, staff training and staff exchange
arrangements;
v. Provision of targeted scholarships in favor of programs producing graduates needed by
the nation;
vi.
Conducting of a critical analysis of the policies on higher education with a view to
revising and updating them;
vii.
Development of partnerships in the funding of higher education;
5.
Management and Financing of the Education System
5.1
Management
The extent to which improvements in the education system can be achieved is dependent on the
management and funding provided. There are shortcomings in what presently exists and in this
regard governance and management goals and objectives have been revisited and revised. The
main medium term goal for governance and management of the education system is the
establishment of processes through which the Ministry of Education is to manage an efficient
and accountable decentralized system able to deliver relevant learning and training opportunities
of quality.
The specific policy objectives for governance and management are:
i.
ii.
iii.
iv.
To develop the institutional capacity for management at the central, regional and local
levels;
To increase planning and management capacity;
To increase accountability and transparency throughout the education system;
To strengthen the decentralized system of governance;
The strategy related actions of highest priority in the short and medium term for governance and
management are:
i.
Development and utilization of an effective human resources management strategy and
error-free database;
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ii.
iii.
iv.
v.
vi.
vii.
Checking and making copies of their TOR and job descriptions available to all MOE
personnel;
Conduct a skills audit to ensure that personnel have the necessary skills and qualifications
to undertake the jobs for which they are paid;
Provision of training that would enable all personnel to perform their roles and
responsibilities efficiently and effectively;
Development and utilization of a performance appraisal system;
Development and utilization of an effective system of monitoring, supervision and
reporting;
Development of decentralization policy and strategy with built-in transparent
accountability mechanisms;
Good management is built upon good monitoring and supervision. Many of the challenges facing
education in Liberia presently can be directly traced to a deficiency in the level and quality of
monitoring and supervision of the system. In this regard, the goals and objectives for monitoring
and supervision have been re-visited and revised. The main medium term goal is now - to
develop monitoring and supervisory mechanisms that will provide useful information to guide
the Ministry of Education’s management of the system and its actions.
The specific policy objectives are:
i. To clarify the roles and responsibilities of different institutions and department at national
and local levels in monitoring and supervision;
ii. To strengthen the capacities of district education offices and county education offices in
monitoring and supervision including classroom assessment of student learning;
iii. To strengthen record keeping capacity at the school and community level;
iv. To develop mechanism for monitoring sector plan progress and providing feedback;
v. To improve the EMIS and the analysis and use of EMIS data;
The strategy related actions of highest priority in the short and medium term for monitoring and
supervision are:
i. Development of simple tools for monitoring and supervision of educational institutions
and teaching;
ii. Establishment of school level management committees in each school;
iii. Provision of training for county and district education officers on monitoring and
supervision;
iv. Provision of necessary equipment and logistics for monitoring and supervision;
v. Development of simple forms/tools for record keeping at the school level;
vi. Training of relevant staff in county and district education offices on data entry, analysis
and reporting of information collected from educational institutions;
vii. Establishment of a quality assurance unit;
5.2
Financing
Education in Liberia is funded by the government, households and donors. Government revenue
has been adversely affected by the relatively small number of individuals able to pay taxes and
the fact that some of the large income-generating businesses are just re-starting operations.
127
Additionally the global economic downturn has hit Liberia hard and actual and projected revenue
has declined steeply.
Households have been spending significant amounts on education. Given the poverty status of
Liberian households as indicated in the Poverty Reduction Strategy (PRS) document, it is
apparent that many households have reached a limit on the amount that can be spent on
education. In this regard, the government is to increase its’ spending on education in order to
ensure that significant progress is made towards the achievement of universal access and
completion of primary education by 2015.
The Government of Liberia is committed to increasing its allocation to education. From 2010 to
2012, the recurrent education budget (excluding debt service) will increase from 14 to 16
percent and will reach 18 percent in 2015. The priority of the government is basic education but
as a first step every effort will be made to get near to universal access and completion of primary
schooling by 2015. The share allocated to primary education is projected to rise from 39.2% in
2008 to 41 percent in 2010, 43 percent in 2012 and reach 45 percent in 2015.
In order to ensure that sufficient funds are available the government intends to enforce relevant
provisions in the Education Law to supplement its normal allocations to education. Even so,
donors/partners are expected to support the efforts of government by filling the financing gaps
that may exist after it has provided all of the funds at its disposal.
To the extent that it is possible, existing in-country donor financing management mechanisms
acceptable to the government, FTI and the supervising agency for the Catalytic Fund will be
employed for donor funds received in support of implementing the sector plan. The government,
its partners and the proposed supervising agency have considered use of the existing pooled fund
mechanism employed for the implementation of the LPERP. However, in the absence of an audit
of the pooled fund, it has been concluded that it would be more prudent to proceed with a project
financing mechanism for support received from the Catalytic Fund. When the audit of the pooled
fund is completed the financing management mechanism in use may be revisited if warranted.
Ultimately sectoral financing/targeted budget support is envisioned but is not feasible at this
moment in time. Additional details on the donor financing management mechanism proposed
can be found in the project document for the Catalytic Fund application.
6.
Targets and Indicators
With the Government of Liberia able to fulfill its financial commitments to education and its
partners able to provide the necessary support to bridge any financing gap, progress towards the
achievement of stated goals and targets will be measured with the use of a number of indicators.
Some of these indicators are stated below.
6.1
Primary Education
The target of highest priority for the period up to 2020 is 100 percent of 6 to 11 year olds
attending and completing primary schooling of quality. Ideally, this target should be achieved by
2015 but since it has not been possible to get all 6 year olds into grade 1 in the 2009/10 academic
year, a new target date of 2020 has been set. The key indicators employed for measuring
progress towards achievement of this target are:
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Access Indicators: Intake and enrollment rates; ratio of girls to boys enrolled.
The gross intake rate (GIR) is projected to move from 109 percent in 2010 to 106 percent in
2012, 100 percent in 2015 and to maintain this rate up to 2020. At the same time, the net intake
rate (NIR) is to move from 23 percent in 2010 to 38 percent in 2012, 61 percent in 2015 and 100
percent in 2020.
The gross enrollment rate (GER) is projected to move from 94.6 percent in 2010 to 95.2 percent
in 2012, 96 percent in 2015 and 102 percent in 2020. At the same time, the net enrollment rate
(NER) is to move from 46 percent in 2010 to 57 percent in 2012, 73 percent in 2015 and 100
percent in 2020.
The ratio of girls to boys enrolled in primary schools is projected to move from 90 percent in
2010 to 91 percent in 2012, 93 percent in 2015 and 97 percent (gender parity) in 2020.
Quality Indicators: Repetition and proxy completion rates; pupil teacher ratio (PTR); learning
achievement scores.
The repetition rate is projected to drop from 6 percent in 2010 to 5 percent in 2012, 4 percent in
2015 and 2 percent in 2020.
The completion rate is projected to move from 68 percent in 2010 to 75 percent in 2012, 84
percent in 2015 and 100 percent in 2020.
The pupil teacher ratio (PTR) is projected to move from 47 in 2010 to 46 in 2012, 44 in 2015 and
40 in 2020.
Learning achievement tests in early grade reading and its equivalent in mathematics/number
work are to be introduced during the lifetime of the sector plan. After initial preparatory work,
trial runs and fine-tuning, these assessments will take place annually. Analysis of test scores will
be used to monitor changes in quality of the system and inform policy decisions as well as
action.
6.2 Other Levels of Education
Similar indicators to that for primary education are used for the other levels. Given below are
some of the key indicators employed.
Access Indicators
Pre-primary gross enrollment rate – projected to decrease from 141 percent in 2008 to 128
percent in 2010, 116 percent in 2012, 97 percent in 2015 and 65 percent in 2020 as increasing
numbers of ‘over-aged’ children are removed or prevented from entering the level.
Grade 7 (junior high school) access rate – projected to increase from 49 percent in 2010 to 54
percent in 2012, 62 percent in 2015 and 75 percent in 2020 as more children complete primary
education and continue schooling
Junior high school gross enrollment rate – projected to increase from 47 percent in 2010 to 52
percent in 2012, 60 percent in 2015 and 73 percent in 2020.
Junior high school ratio of girls to boys enrolled – projected to increase from 82 percent in 2010
to 85 percent in 2012, 89 percent in 2015 and 97 percent in 2020 as more girls are persuaded to
continue with their education.
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Grade 10 (senior high school) access rate – projected to increase from 30 percent in 2010 to 35
percent in 2012, 41 percent in 2015 and 54 percent in 2020 as more students complete junior
high school and are motivated to move beyond basic education.
Senior high school ratio of girls to boys enrolled – projected to increase from 74 percent in 2010
to 78 percent in 2012, 85 percent in 2015 and 97 percent in 2020 as girls are presented with
increasing opportunities and reasons to continue with their education.
Higher education students per thousand of population – projected to gradually increase from 802
in 2010 to 803 in 2012, 804 in 2015 and 807 in 2020 as greater attention is given to improving
quality and controlled growth.
Quality Indicators
Junior high school repetition rate – projected to decrease from 6 percent in 2010 to 5 percent in
2012, 4 percent in 2015 and 2 percent in 2020.
Junior high school survival rate – projected to increase from 81 percent in 2010 to 83 percent in
2012, 86 percent in 2015 and 90 percent in 2020.
Junior high school proxy completion rate – projected to move from 40 percent in 2010 to 45
percent in 2012, 53 percent in 2015 and 67.5 percent in 2020.
Junior high school average number of hours of instruction per week – projected to increase from
22 hours in 2010 to 22.5 hours in 2012, 23.4 hours in 2015 and 25 hours in 2020.
Senior high school survival rate – projected to increase from 82 percent in 2010 to 83 percent in
2012, 86 percent in 2015 and 90 percent in 2020.
Senior high school proxy completion rate – projected to move from 25 percent in 2010 to 29
percent in 2012, 36 percent in 2015 and 49 percent in 2020.
Senior high school average number of hours of instruction per week – projected to increase from
25 hours in 2010 to 26 hours in 2012, 27 hours in 2015 and 30 hours in 2020.
6.3
Tracking the Indicators
The indicators are to be tracked through information from financial entities such as the Ministry
of Finance, Central Bank of Liberia and IMF as well as data on education collected at the school,
district and county level. These will be used to inform and update a financial simulation model
that has already been developed. This model will be used to provide information on changes in
all the indicators and to guide any changes in policy needed to keep the sector plan on track. The
public will be kept informed through regular press and media reports and programs as well as
annual reports disseminated at Sector Reviews planned for each year.
7.
Conclusion
The Government of Liberia is committed to providing the people of Liberia with the education
that meet the needs expressed during national Poverty Reduction Strategy and Education Sector
Plan consultations. In this regard it will increase the percentage of the budget allocated to the
sector. At the same time it is cognizant of the fact that the increased funding will not meet all of
the important needs of the sector as outlined in its education plan and that the support of its
partners and donors is needed to bridge the funding gap. It is worth noting that the magnitude of
the funding gap is such that overall dependency on external support is only marginally increased
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taking into account the anticipated growth in the Liberian economy following the recent global
financial downturn.
Overall, the Government of Liberia is satisfied with its sector plan for education for the period
2010 to 2020 and the undertaking by its partners to provide support for transforming the plan to
reality. Having gone through almost a decade and a half of chaos and mayhem and having gone
without the education that could lift them out of the depths of poverty for such a long time, the
people of Liberia deserve no less than the concerted efforts of government and partners to give
them hope for a better and brighter future.
Minister of Education
Minister of Finance
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Annex 13: Documents in the Project File
LIBERIA: Fast Track Initiative Grant for Basic Education
1. Joint Assistance Strategy, 2009
2. Poverty Reduction Strategy, 2008
3. Public Expenditure Management and Financial Accountability Review, 2009
4. Country Status Report, 2009
5. Education Sector Plan, 2009
6. Education Sector Review Report 2009
7. Civil Service Reform Program – Revised Year 1 Priority Action Plan
8. Draft National Policy on Decentralization and Local Governance
9. National School Census Report 2007/8
10. Professional Standards for Teachers in Liberia
11. Priorities for Education Sector Recovery in Post-Conflict Liberia, FY 2007/08 – FY
2011/12,
12. Liberian Primary Education Recovery Program (LPERP) – Prepared for the Fast Track
Initiative, MOE, 2007
13. Teacher Issues in Liberia – Draft Report, Government of Liberia/World Bank, January
2008
14. National Stakeholders’ Consultative Conference on Tertiary Education in Liberia –Draft
Report, Government of Liberia/UNESCO, 2007
15. Early Childhood Education in Liberia, Government of Liberia and OSIA, 2009
16. Assessment of the ALP in Liberia implemented by UNICEF. Sue Nicholson, 2007
132
Annex 14: Statement of Loans and Credits
LIBERIA: Fast Track Initiative Grant for Basic Education
Difference between
expected and actual
disbursements
Original Amount in US$ Millions
Purpose
IBRD
FY
P113450
2009
LR - RRSP2-Budget Support
0.00
4.00
0.00
0.00
0.00
4.16
0.00
0.00
P113099
2009
LR-Urban and Rural Infra. Rehab. Project
0.00
44.00
0.00
0.00
0.00
45.73
0.67
0.00
P107248
2008
LR-Econ. Gov. & Institut. Ref. TAL (FY08
0.00
11.00
0.00
0.00
0.00
7.38
1.09
0.00
P104716
2008
LR-Agric. & Infra. Dev. Proj. ERL (FY08)
0.00
53.00
0.00
0.00
0.00
33.91
-1.46
0.00
P105683
2007
LR-Comm. Empowerment II
0.00
5.00
0.00
0.00
0.00
2.08
-0.72
0.00
P105282
2007
LR-Health Systems Reconstr.
0.00
8.50
0.00
0.00
0.00
5.77
1.73
0.00
P100160
2006
LR-Emergency Infrastructure ERL (FY06)
0.00
54.70
0.00
0.00
0.00
12.92
-22.62
-8.81
0.00
180.20
0.00
0.00
0.00
111.95
- 21.31
- 8.81
Total:
IDA
SF
GEF
Cancel.
Undisb.
Orig.
Frm. Rev’d
Project ID
LIBERIA
STATEMENT OF IFC’s
Held and Disbursed Portfolio
In Millions of US Dollars
Committed
Disbursed
IFC
FY Approval
Company
Loan
Total portfolio:
0.00
IFC
Equity
Quasi
Partic.
0.00
0.00
0.00
Loan
0.00
Equity
Quasi
Partic.
0.00
0.00
0.00
Approvals Pending Commitment
FY Approval
Company
Loan
Equity
Quasi
Partic.
0.00
0.00
0.00
0.00
Total pending commitment:
133
134
IBRD Map No. 33435R2
Liberia Map
135