Document of
The World Bank
FOR OFFICIAL USE ONLY
Report No: 72949-GH
PROJECT APPRAISAL DOCUMENT
ON A
Global Partnership for Education Fund Grant
IN THE AMOUNT OF US$75.5 MILLION
TO THE
REPUBLIC OF GHANA
FOR A
GHANA PARTNERSHIP FOR EDUCATION GRANT Project
October 10, 2012
Central and West Africa Education Unit
Africa Region
This document is being made publicly available in accordance with the Bank’s policy on Access to Information.
CURRENCY EQUIVALENTS
(Exchange Rate Effective September 12, 2012)
Currency Unit / = / New Ghana CediGH 1 / = / US$.526
US$ / = / 1.90 GH
FISCAL YEAR
January 1 / – / December 31ABBREVIATIONS AND ACRONYMS
ADEOP Annual District Education Operational PlanAESOP Annual Education Sector Operational Plan
APW Annual Programs of Work
BECE Basic Education Certificate Examination
CBI Cluster Based In-service Training
CSO Community Service Organization
DACF District Assembly Common Fund
DED District Education Directorate
DFID UK Department for International Development
EFA-FTI Education for All Fast Track Initiative
EGRA Early Grade Reading Assessment
EMIS Education Management Information System
ESP Education Sector Plan
EDSEP Education Sector Project
FCUBE Free Compulsory Universal Basic Education
FTI Fast Track Initiative
GDP Gross Domestic Product
GES Ghana Education Service
GEU Girls Education Unit
GNAT Ghana National Association of Teachers
GoG Government of Ghana
GPE Global Partnership for Education
GPEF Global Partnership for Education Fund
ICT Information and Communication Technology
IMF International Monetary Fund
INSET In-Service Education and Training
JHS Junior High School
JICA Japan International Cooperation Agency
LEAP Livelihood Empowerment Against Poverty
MDBS Multi-Donor Budget Support
MDGs Millennium Development Goals
MLGRD Ministry of Local Government and Rural Development
MMDAs Metropolitan, Municipal and District Assemblies
MoE Ministry of Education
MoFEP Ministry of Finance and Economic Planning
MoLG Ministry of Local Government
MTEF Medium Term Expenditure Framework
NAB National Accreditation Board
NALAP National Literacy Accelerated Program
NAR Net Admission Rate
NCCA National Curriculum Coordinating Authority
NCTE National Council for Tertiary Education
NDC National Democratic Congress
NEA National Education Assessment
NER Net Enrolment Ratio
NERIC National Education Reform Implementation Committee
NERP National Education Reform Program
NESAR National Education Sector Annual Review
NGO Non-Governmental Organization
NIB National Inspectorate Board
NTC National Teaching Council
NVTIs National Vocation Training Institutes
ODL Open and Distance Learning
PBME Planning, Budgeting, Monitoring and Evaluation Department
PCE Per child recurrent expenditure
PCR Primary Completion Rate
PPP Purchasing Power Parity
PRSCs Poverty Reduction Strategy Credits
PRSP Poverty Reduction Strategy Paper
PTA Parent Teacher Association
PTE Per teacher recurrent expenditure
PTR Pupil Teacher Ratio
PTTR Pupil Trained Teacher Ratio
SBA School Based Assessment
SBI School Based In-service Training
SEA School Education Assessment
SHS Senior High School
SMC School Management Committee
SPAM School Performance Assessment Meeting
SP School Profile
SPIP School Performance Improvement Plan
SRC School Report Cards
SSA Sub-Saharan Africa
SSSCE Senior Secondary School Certificate Examination
TED Teacher Education Department
TIG Technical Implementation Group
THR Take Home Rations
TIMSS Trends in International Mathematics and Science Study
TTIs Technical Training Institutes
TVET Technical and Vocational Education and Training
UBC Universal Basic Completion
UBE Universal Basic Education
UCC University of Cape Coast
UNICEF United Nations Children’s Fund
UPC Universal Primary Completion
USAID United States Agency for International Development
UTDBE Untrained Teachers Diploma in Basic Education
VAT Value Added Tax
WAEC West African Examination Council
WASSCE West African Senior Secondary Certificate Examination
WFP World Food Program
Regional Vice President: / Makhtar Diop
Country Director: / Yusupha B. Crookes
Sector Director: / Ritva S. Reinikka
Sector Manager: / Peter Nicolas Materu
Task Team Leader: / Deborah Newitter Mikesell
REPUBLIC OF GHANA
Ghana Partnership for Education Grant Project
TABLE OF Contents
Page
I. STRATEGIC CONTEXT 1
A. Country Context 1
B. Sectoral and Institutional Context 3
C. Higher Level Objectives to which the Project Contributes 7
II. PROJECT DEVELOPMENT OBJECTIVES 8
A. Project Development Objectives 8
Project Beneficiaries 8
PDO-level Results indicators 9
III. PROJECT DESCRIPTION 9
A. Project Components 9
B. Project Financing 15
Lending Instrument 15
Project Cost and Financing 15
IV. IMPLEMENTATION 15
A. Institutional and Implementation Arrangements 15
B. Results Monitoring and Evaluation 16
C. Sustainability 17
V. KEY RISKS AND MITIGATION MEASURES 17
VI. APPRAISAL SUMMARY 18
A. Economic and Financial Analyses 18
B. Technical 20
C. Financial Management 20
D. Procurement 21
E. Social (including Safeguards) 21
F. Environment (including Safeguards) 22
Annex 1: Results Framework and Monitoring 23
Annex 2: Detailed Project Description 26
Annex 3: Implementation Arrangements 50
Annex 4: Operational Risk Assessment Framework (ORAF) 78
Annex 5: Implementation Support Plan 84
Annex 6: Sector Background 88
Annex 7: Economic and Financial Analysis 99
Annex 8: Lessons Learned/Literature Review 107
.PAD DATA SHEET
Ghana Partnership for Education Grant Project (P129381)
PROJECT APPRAISAL DOCUMENT
.
AFRICA
Central and West Africa Education
.
Basic Information
Date: / 10-October-2012 / Sectors: / Primary education (80%), General education sector (20%)
Country Director: / Yusupha B. Crookes / Themes: / Education for all (100%)
Sector Manager/Director: / Peter Nicolas Materu/Ritva S. Reinikka
Project ID: / P129381 / EA Category: / B - Partial Assessment
Lending Instrument: / Specific Investment Lending
Team Leader(s): / Deborah Newitter Mikesell
Joint IFC: No
.
Borrower: Ministry of Finance and Economic Planning
Responsible Agency: Ghana Education Service
Contact: / Chris Koramoah / Title: / Financial Controller, GES
Telephone No.: / 23321231664 / Email: /
.
Project Implementation Period: / Start Date: / 10-Oct-2012 / End Date: / 31-Oct-2015
Expected Effectiveness Date: / 11-Jan-2013
Expected Closing Date: / 31-Oct-2015
.
Project Financing Data(US$M)
[ ] / Loan / [ ] / Grant / [ X ] / Other- Global Partnership for Education Fund Implementation Grant
[ ] / Credit / [ ] / Guarantee
For Loans/Credits/Others
Total Project Cost (US$M): / 75.50
Total Bank Financing (US$M): / 0.00
.
Financing Source / Amount(US$M)
Borrower / 0.00
Global Partnership for Education Fund / 75.50
Total / 75.50
.
Expected Disbursements (in USD Million)
Fiscal Year / 2013 / 2014 / 2015 / 2016
Annual / 23.15 / 23.72 / 24.13 / 4.5
Cumulative / 20.15 / 46.87 / 71.00 / 75.50
.
Project Development Objective(s)
The PDO of the Ghana Partnership for Education Grant is to improve the planning, monitoring and delivery of basic education services in deprived districts of the Recipient’s Territory.
.
Components
Component Name / Cost (USD Millions)
Sub-Grants to Deprived Districts to support key education objectives / 44.86
School Sub-Grants / 24.06
Project Management and Institutional Strengthening / 6.58
.
Compliance
Policy
Does the project depart from the CAS in content or in other significant respects? / Yes / [ ] / No / [ X ]
.
Does the project require any waivers of Bank policies? / Yes / [ ] / No / [ X ]
Have these been approved by Bank management? / Yes / [ ] / No / [ X ]
Is approval for any policy waiver sought from the Board? / Yes / [ ] / No / [ X ]
Does the project meet the Regional criteria for readiness for implementation? / Yes / [ X ] / No / [ ]
.
Safeguard Policies Triggered by the Project / Yes / No
Environmental Assessment OP/BP 4.01 / X
Natural Habitats OP/BP 4.04 / X
Forests OP/BP 4.36 / X
Pest Management OP 4.09 / X
Physical Cultural Resources OP/BP 4.11 / X
Indigenous Peoples OP/BP 4.10 / X
Involuntary Resettlement OP/BP 4.12 / X
Safety of Dams OP/BP 4.37 / X
Projects on International Waterways OP/BP 7.50 / X
Projects in Disputed Areas OP/BP 7.60 / X
.
Legal Covenants
Name / Recurrent / Due Date / Frequency
Recipient has established the Steering Committee, in accordance with the provisions of Section I.A.1(c) of Schedule 2 to the Grant Agreement / Two months after effectiveness date
The Recipient shall, not later than six months after the Effective Date, engage external auditors for the purpose of verifying and validating the flow of funds under the Project in accordance with the provisions of Section 2.B.4 of Schedule 2 to the Grant Agreement / 6 months after effectiveness date
.
Conditions
Name / Type
Recipient has adopted a Project Implementation Manual, in accordance with the provision of Section I.B.2 of Schedule 2 to the Grant Agreement (Section 4.01(a)) / Effectiveness
Name / Type
The execution and delivery of the Grant Agreement on behalf of the Recipient have been duly authorized or ratified by all necessary governmental action (Article IV, Section 4.01(b)) / Effectiveness
Team Composition
Bank Staff
Name / Title / Specialization / Unit
Qaiser M. Khan / Sector Lead Economist / Sector Lead Economist / AFTSE
Peter Darvas / Senior Education Econ. / Senior Education Econ. / AFTED
Deborah Newitter Mikesell / Senior Operations Officer / Team Lead / AFTED
Eunice Yaa Brimfah Ackwerh / Senior Education Specialist / Senior Education Specialist / AFTED
Kirsten Majgaard / Education Economist / Education Economics / AFTED
Daniela Anna B. D. Junqueira / Counsel / Counsel / LEGAM
Robert Wallace DeGraft-Hanson / Financial Management Specialist / Financial Management Specialist / AFTME
Shwetlena Sabarwal / Economist / Economist / AFTED
Adu-Gyamfi Abunyewa / Senior Procurement Specialist / Senior Procurement Specialist / AFTPE
Anders Jensen / M&E Specialist / Results Framework / AFTOS
Bernardo da Cruz Vasconcellos / Economist / Monitoring and Evaluation / AFTED
Luis M. Schwarz / Sr. Finance Officer / Disbursements / CTRLD
Rose-Claire Pakabomba / Program Assistant / Program Assistant / AFTED
Beatrix Allah-Mensah / Social Development Specialist / Safeguards / AFTSD
Jessica Dodoo / Team Assistant / Team Assistant / AFCW1
.
Locations
The GPEG project will be implemented in 57 deprived districts within eight of the ten regions of Ghana.
.
iv
I. STRATEGIC CONTEXT
A. Country Context
1. Ghana is a strong performer among the Sub-Saharan African economies. After years of sustained economic growth and based on a 2010 GNI per capita of US$1,240, Ghana reached the status of lower middle income economy as of 2011, with ambitions for further rapid growth and development in the coming years. Ghana’s economy—which grew by an average of 5.7 percent per year between 2000 and 2009—is based to a large extent on natural resources and agriculture, mostly high volume and low intensity production of raw materials, such as cocoa. A series of shocks in 2008 led to high fiscal deficits, the appreciation of the Ghana cedi and the closing of access to international capital markets. In recent years, the beginning of oil production combined with high global commodity prices and good rains boosted the economy and real GDP growth is expected to reach 12.2 percent in 2011 and more than 7 percent in both 2012 and 2013[1]. High public expenditure arrears remain a challenge despite new oil revenues. Efforts to ensure transparent and accountable use of these new resources are critical. Further, there is a need to improve the quality of public spending, including (a) a better targeting of programs to support the poor, (b) stronger management and control systems, and (c) improving the effectiveness of public servants.[2]
2. The review of progress towards the Millennium Development Goals (MDGs) depicts steady progress in many areas. The share of the population living in poverty nearly halved from 52 percent at the beginning of the 1990s to 28.5 percent by 2005-06. Based on trend data, the income poverty, hunger, and access to water goals are largely on track to be met by 2015.[3] At the same time, other important MDGs, such as sanitation, child and maternal mortality are still off-track and require more effort. As related to the education MDGs, Ghana has made substantial progress since 1990 in terms of increasing the proportion of children completing a full cycle of primary schooling, with the primary completion rate estimated at 89[4] percent in 2010/2011, up from 79 percent in 1991. Despite this healthy progress, Ghana cannot fully achieve MDG2 by 2015, as there are still around 5 percent of children with no access to formal schooling, according to household survey data. In terms of MDG3 on gender disparities in school enrollments, the ratio of girls to boys in primary and secondary education attained 92 percent in 2010/11; based on the improvement trend, Ghana is not quite on track to achieve parity by 2015. This reflects that there are still gender gaps in school participation in the poorer parts of Ghana.
Table1: Ghana’s progress towards the Millennium Development Goals
Observation / Initial / Most RecentMDG1a. Poverty headcount ratio, national poverty line (% of population) / 51.7 / 1992 / 28.5 / 2006
MDG1b. Malnutrition prevalence, weight for age (% of children under 5) / 27.4 / 1993 / 13.9 / 2008
MDG2. Primary completion rate, total (% of relevant age group) / 61.2 / 1991 / 89 / 2010
MDG3. Ratio of girls to boys in primary and secondary education (%) / 78.5 / 1991 / 92 / 2010
MDG4. Mortality rate, under-5 (per 1,000) / 119.7 / 1990 / 80 / 2008
MDG5. Pregnancy-related mortality rate (per 100,000 live births) / 740 / 1990 / 451 / 2008
MDG7a. Improved water source (% of population without access) / 44.0 / 1990 / 16.2 / 2008
MDG7b. Improved sanitation facilities (% of population without access) / 96.0 / 1993 / 87.6 / 2008
Source: The 2010 education indicators are calculated from EMIS 2010/11 data and 2010 population based on projections of the 2000 census data. Once the 2010 census data are available, the completion rate will be re-assessed. Other data are from "2008 Ghana Millennium Development Goals Report", Republic of Ghana, April 2010.
3. Fast economic growth and poverty reduction has mainly benefited the south of Ghana, with poverty now concentrated in the north. Despite the overall reduction in poverty, wide regional disparities in poverty and human development indicators remain, mainly between the poorer northern Savanna regions and the rest of the country. Between 1992 and 2006 (Ghana Living Standards Survey 3 and 5), the number of poor declined by 2.5 million in the south while it grew by 0.9 million in the northern regions. Thus, the bulk of poverty has become concentrated in the three northern regions which now comprise more than half the poor (against a fourth of Ghana’s population) and where no significant poverty reduction has been observed in the past, either through local development or out-migration.[5]