Document ofThe World Bank

FOR OFFICIAL USE ONLY

Report No: 23553

IMPLEMENTATION COMPLETION REPORT(IDA-24360)

ONA

CREDIT

IN THE AMOUNT OF SDR 34.1 MILLION (US $48.6 MILLION EQUIVALENT)

TO THE

GOVERNMENT OF MOZAMBIQUE

FOR A

CAPACITY BUILDING: HUMAN RESOURCES DEVELOPMENT PROJECT

03/29/2002

This document has a restricted distribution and may be used by recipients only in the performance of theirofficial duties. Its contents may not otherwise be disclosed without World Bank authorization.

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CURRENCY EQUIVALENTS

(Exchange Rate Effective November 30, 2001)

Currency Unit - Metical (Plual Meticais): MtMt. 1000 = USS 0.04USS 1.00 - .Mt. 22,960

FISCAL YEARJanuary I Decemnber 31

ABBREVIATIONS AND ACRONYMSBM Bank of MozambiqueCAS Country Assistance StrategyCDP Capacity Building ProjectCIDA Canadian Intemational Developinent AgencyCSP Country Strategy PaperDCA Development Credit AgreementDAF Directorate of Administration and FinanceEMUNet Eduardo Mondlane University NetworkEPU Pre-University Education (Upper Secondary Education)ERC Econormic Recovery CreditERP Economic Rehabilitation ProgramESAF Enhanced Structural Adjustment ProgramESG General Secondary EducationESSP Education Sector Strategic ProgramESW Economic Sector WorkFMU Financial Management UnitFMS Financial Management SystemFRR Financial Rate of ReturnGEPE Educational Projects Management Unit (Gabinete Tecnico de Gestao de Projectos

Educacionais)GIU University Building Office (Gabinete de Instalacoes Universitarias)HEI Higher Education InstitutionHEP Higher Education ProjectIC Inter-Ministerial Committee (Comissao Inter Ministerial)ICR Implementation Completion ReportIDA Intemational Development AssociationISP Superior Institute of Pedagogy (current Pedagogical University)MAE Ministry of State AdministrationMESCT Ministry of Higher Education, Science and TechnologyMINED Ministry of EducationMPF Ministry of Planning and FinanceNDSE National Directorate of Secondary EducationNPV Net Present ValuePCU Project Coordination UnitPIU Project Implementation UnitPPAR Project Performance Audit ReviewPPF Project Preparation FacilityPSR Project Status ReportSAF Structural Adjustment FacilitySAR Staff Appraisal ReportS[DA Swedish Intenational Development AgencyUEM Eduardo Mondlane UniversityUP Pedagogical University

Vice President Callisto E. Madavo (AFRVP)Country Director Darius Mans (AFC02)

Sector Manager: Dzingai B. Mutumbuka (AFTHI)Task Team Leader: Soren Nellemann (AFTHI)

FOR OFFICIAL USE: ONLY

MOZAMBIQUECAPACITY BUILDING: HUMAN RESOURCES DEVELOPMENT PROJECT

CONTENTS

Page No.1. Project Data 12. Principal Performance Ratings 13. Assessment of Development Objective and Design, and of Quality at Entry 14. Achievement of Objective and Outputs 55. Major Factors Affecting Implementation and Outcome 126. Sustainability 147. Bank and Borrower Performance 158. Lessons Learned 189. Partner Cormnents 1910. Additional Information 21Annex 1. Key Performance Indicators/Log Frarne Matrix 22Annex 2. Project Costs and Financing 25Annex 3. Economic Costs and Benefits 28Annex 4. Bank Inputs 29Annex 5. Ratings for Achievement of Objectives/Outputs of Comnponents 31Annex 6. Ratings of Bank and Borrower Performance 32Annex 7. List of Supporting Documents 33Annex 8. The Borrower's Evaluation Report: Eduardo Mondlane University 34Annex 9. The Borrower's Evaluation Report: Ministry of Education 42

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not otherwise be disclosed withoutWorld Bank authorization.

MOZAMBIQUECAPACITY BUILDING: HUMAN RESOURCES DEVELOPMENT PROJECT

PREFACE

This is the Implementation Completion Report (ICR) for the Mozambique Capacity Building: HumanResources Development Project for which Credit 2436-MOZ in the amount of SDR 34.1 million equivalentwas approved on November 19, 1992 and made effective on December 1, 1993.

The credit closed on September 30, 2001 after a two year and three months extension from the originalclosing date of June 30, 1999.

The ICR was prepared by Keiichi Ogawa (Education Economist) and Noel Kulemeka (Senior Economist),under the supervision of Soren Nellemann (Task Team Leader), with administrative support from BrigidaArriaza (Program Assistant). It was reviewed by Dzingai B. Mutumbuka (Sector Manager), Johannes C.M. Zutt (Country Program Coordinator), and the staff in AFTH 1 Unit and the Mozambique country team.The ICR team particularly acknowledges the contribution provided by Bruce Jones (Senior Economist),Alexandria Valerio (Education Specialist), and William Saint (Lead Education Specialist).

The implementation completion mission took place from December 10 to 21, 2001. The report is based onmaterials in the project file, the Borrowers' Evaluation Reports, site visits, findings from surveyquestionnaires and discussion during the completion mission, including attendance at two workshops - forUEM and MINED, respectively.

Project ID: P00 1797 Project Name: CAPACITY BUILDING HUMANDEV. PROJECT

Team Leader: Soren Nellemann TL Unit: AFTHH1ICR Type: Core ICR Report Date: March 28, 2002

1. Project Data

Name: CAPACITY BUILDING HUMAN DEV. PROJECT LICITF Mzmber: IDA-24360Country/Department: MOZAMBIQUE Region: Africa Regional Office

Sector/subsector: EV - Vocational/Technical Education & Training

KEY DATESOriginal Revised/Actual

PCD: 11/14/1990 Effective: 05/29/1993 12/01/1993Appraisal: 04/18/1992 MTR: 12/30/1995 12/30/1996Approval: 11/19/1992 Closing: 06/30/1999 09/30/2001

Borrower/lImplementingAgency: GOM/MINISTRY OF EDUCATION; GOM/EDUARDO MONDLANEUNIVERSITY

Other Partners: SIDA

STAFF Current At AppraisalVice President: Callisto E. Madavo Edward V. K. JaycoxCountry Manager: Darius Mans David CookSector Manager: Dzingai B. Mutumbuka David de FerantiTeam Leader at ICR: Soren Nellemann Jacomina P. de RegtICR Primary Author: Keiichi Ogawa; Noel Kulemeka;

Soren Nellemann

2. Principal Performance Ratings

(HS=Highly Satisfactory, S=Satisfactory, U=Unsatisfactory, HL=Highly Likely, L=Likely, UN=Unlikely, HUN=HighlyUnlikely, HU=Highly Unsatisfactory, H=High, SU=Substantial, M=Modest, N=Negligible)

Outcome: S

Sustainability: L

Institutional Development Impact: SU

Bank Performance: S

Borrower Performance: S

QAG (if available) ICRQuality at Entry: S

Project at Risk at Any Time:

3. Assessment of Development Objective and Design, and of Quality at Entry

3.1 Original Objective:Overview/BackgroundThe Capacity Building, Human Resources Development Project, was designed in 1991-1992, whenMozambique faced a severe crisis of institutional and managerial capacity. The project was implemented

during a period of tremendous political changes and the transformation of the economy from a centrallyadministrated structure to one that embodies a market system and rapid economic growth. Throughout thelife of the project, Mozambique's severe capacity constraint presented a critical barrier to the successfulimplementation of post-war national reconstruction and the Government's Economic and SocialRehabilitation Program supported by the World Bank. In 2000, the implementation was further affected bythe floods and cyclones that hit the southern provinces of the country.

In 1990, Mozambique had fewer than 3,000 university-trained people. Less than 15 percent of civil servicepersonnel had a university degree and more than one-third of civil servants had less than 7 years of primaryeducation. The limited number of highly trained and professionally experienced Mozambicans who couldprovide leadership and could assist in the planning and management of both public and private sectoractivities which were vital to the country's progress in the economic and social spheres, were usuallysiphoned off to emerging private institutions which offered better conditions of service and a moreattractive work environment.

In response to these circumstances, in 1991, the Government, with support from the World Bank and theSwedish Agency for International Development (SIDA) prepared two reports: the Capacity Building PolicyFramework Paper and Capacity Building Sector Study. These reports laid out the critical elements of astrategy to build national capacity in the post-war period. The Capacity Building Strategy was one of themain pillars around which the Country Strategy Paper (CSP) was built. On this basis the Government andthe World Bank developed a capacity building project which was subsequently divided into two projects atnegotiation in July 1992. These were the Capacity Building Human Resources Development Project andthe Capacity Building: Public Sector and Legal Institutions Development Project. While the two projectswere separated into two distinct investment projects, the overall coordination remained under anInter-Ministerial Committee (IC), which was established by the Prime Minister and presided over by theMinister of State Administration who was responsible for national capacity building programs. During thesubsequent economic changes and the move from a one-party rule to a post-conflict democratic society, anumber of political and institutional bottlenecks, which impeded effective implementation during the earlyyears of the project leading to an early disbursement lag, were created (These developments were largelyoutside the control of the implementing agencies as well as the government).

During the latter years of the project, the implementation accelerated significantly. In fact, the improvedcapacity at the UEM and the preparation of an evaluation of the implementation of the Eduardo MondlaneUniversity (UEM) component in the year 2000, led to the development of a national strategy for highereducation in 2000. Moreover, the evaluation of the UEM components played a key role in the design of theHigher Education Project which was approved on March 7, 2002 by the Board of the World Bank.

Original ObjectivesThe Capacity Building: Human Resources Development Project (CBP) supported two closely linkedobjectives to improve the number and quality of secondary school graduates and higher educationprofessionals. The project was implemented through two distinct institutions, namely by the EduardoMondlane University (UEM) and the Ministry of Education's project implementation unit (GEPE -Gabinete de Gestao de Projetos Educacionais) under the overall coordination of the IC. Thus, in reality theproject consisted of and was implemented as two distinct projects.

The project objectives, as stated in the Staff Appraisal Report were to:(a) expand the quantity and improve the quality of university graduates, by stabilizing and motivating theMozambican teaching faculty; enriching the leaming environment; upgrading and maintaining the UEMphysical facilities; and improving organization and managerial practices; and

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(b) enhance significantly the quality of upper secondary education [Ensino Pre-Universtario (EPU):Pre-University Education] by taking important positive steps in the areas of teacher training; provision ofbooks and other teaching/learning materials; school management and community involvement; and schoolfacility rehabilitation.

As the components were implemented by distinct institutions with separate objectives and outputs, the ICRprovides separate assessments for each component in the two parts, namely the UEM component and EPUcomponent.

Assessment of Development Objectives and DesignThe project was well founded in detailed studies and economic sector work and closely linked to theCountry Strategy Paper (CSP) and the Social and Economic Rehabilitation Program. In line with theoverall country circumstances, the Bank's CSP identified capacity building as a major focus of futureeconomic and sector work as well as policy reform and project investment.

The focus on expanding the quality and quantity of university graduates and the strategy to stabilize theteaching force and improving the quality of existing secondary schools before an expansion of the uppersecondary system were prudent and pragmatic. The approach was confirmed by the Council of Ministersin 1992. The objectives remained valid throughout the project implementation period.

The subsequent paradigm shift by the government after the elections in 1994 had its own consequences.The decision to provide universal access to primary education and increasing the intake at the secondarylevel, resulted in an increased pressure on both teachers and administrative staff, dispersing the limitedcapacity available at the time in the MINED and GEPE.

The separation of the original project into two projects was taken as a step to lower the complexity.Furthermore, the implementation of the EPU components through GEPE, which was well-established andfunctioning at the time, raised more concerns over the lack of experience at UEM. However, in the end theGovernment refocused priority on providing primary education combined with internal organizational andstaffing issues in MINED's National Directorate of Secondary Education (NDSE), and shifted much of theproject focus toward UEM with less attention being paid to the EPU component

3.2 Revised Objective:The objectives were not revised during the project implementation.

3.3 Original Components:The project financed the following two components:

(a) University Stabilization (UEM): (Appraisal Estimate: US$ 30.3 million; 63% of project costs):The component aimed at expanding the quantity and improving the quality of university graduates by: (1)improving education quality through textbook/study materials acquisitions, local textbook publishing,focusing institutional linkages, additional library space, curriculum studies and a university-wide computertraining program; (2) reducing staff losses by aiming at the completion of 92 partially constructeduniversity apartments and renovation of 108 existing housing units; (3) training academic andadministrative staff through graduate training abroad; (4) ensuring adequate regional and genderrepresentation through the construction of two additional student residences; (5) restoring the physical plantwith the building rehabilitation and establishment of a regular maintenance program; and (6) increasingaccountability and strengthening management training by providing technical assistance and planningstudies.

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(b) Quality Improvements in Pre-University Education (EPU) (Appraisal Estimate: US$18.1 million; 37%of project costs):This component was aimed at enhancing the quality of pre-university education by: (1) improving thequality of pre-university education by supporting the development of a new curriculum and examinationsystem, increasing the availability of textbooks and other learning materials, providing teachers withpedagogical support in the form of teaching materials and supervisory visits, and improving the system ofin-service teacher training; (2) stabilizing the EPU network by rehabilitating the existing schools,constructing dormitories and staff housing, and decentralizing the materials budget and maintenanceactivities; (3) strengthening management and maintenance capacities at the school level by in-servicetraining for school directors and administrators; and (4) raising girls' enrollment rates by providingscholarships for girls, supporting community awareness programs, and increasing the number of femaleteachers.

Assessment of Project ComponentsOverall, the components were suited to achieving the development objectives. However, the project couldprobably have captured other key development aspects more clearly (if a log frame methodology had beenused, for example). For instance, some of the sub-components addressed the issue of equity even thoughthe development objectives only mentioned quality and expansion.

When the project was prepared in 1991-92, the design of the project was innovative in a number of ways.It sought to improve the quality of education (graduates) by establishing twinning arrangements betweenUEM and other institutions abroad, providing needs-based scholarships for EPU female students, providingtraining to school directors and teaching/administrative staff (UEM/EPU), and decentralizing the budgetmanagement system (EPU). The project paid special attention to women's educational opportunities.Furthermore, when the project was prepared, there was a risk that the UEM would have difficultyattracting and retaining staff when they returned from graduate studies abroad. To minimize this risk, theproject was designed to expand staff access to housing, as a meaningful staff retention incentive. This newpolicy was an effective way for recruiting and retaining qualified academic and administrative staff. Thiswas particularly significant given the tight housing situation in Mozarnbique and more so in Maputo city.In addition, other measures, including external institutional linkages, availability of computers andreference books, opportunities to attend professional meetings, and campus renovation, also played a roletowards creating an even more positive work environment and an enticement for staff to remain at UEM.

3.4 Revised Components:The scope and focus of the project was revised in three instances: (i) under the UEM component, theplanned construction and equipping of two students' on-campus residences and a student social hall wasaltered to simply rehabilitating the existing facilities to make them more amenable for student living; (ii)under the EPU component, the project sought to rehabilitate 6 EPU schools but one of them wasrehabilitated under the Second Education Project (Cr. 2200-MOZ, 1992 to 1998); and (iii) finally,following the devastating floods and cyclones that hit the southem provinces in the first quarter of 2000resources were allocated to the emergency rehabilitation, including the repair of access roads and buildingsof lower secondary schools and UEM. None of these revisions required the amendment of the DevelopmentCredit Agreement (DCA) since they were permissible within the original DCA.

3.5 Quality at Entry:The quality of the preparation may be rated retroactively as "satisfactory" although the complexity anddelays that arose by having the project coordinated through the IC should have been anticipated given thealready fragmented government with limited capacity. The subsequent, intemal bureaucratic disputes as

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well as the government's focus on the first free democratic elections could not have been anticipated at thetime. The project design reflected lessons learned from the implementation of a previous operation(Education and Manpower Development Project) and was complemented by the Second Education Project.

Experience in Mozambique identified the risk of weak capacity in project implementation as well as lack oflocal commitment to implement the project. For the EPU component, however, the implementation unitGEPE was considered one of the best Project Implementation Units (PIUs) at the time. Later on, thedetached role of GEPE from MINED created a different set of problems during the implementation ofeducation activities.

In order to deal with the lack of experience at UEM, the project had included the appointment of key localimplementation staff as one of the two conditions for effectiveness. For instance, the key staff for the UEMcomponent that were mentioned in the DCA included Director, Senior Procurement Officer, SeniorAccountant, Engineer and Architect. Although the director, engineer and architect had been hired and theother positions advertised, the selection of the other implementation staff were not on terms and conditionsacceptable to the Bank. This led to an eventual delay in the effectiveness of the Credit, and the projectbecame effective without having pre-selected all the key staff. Thus, full staffing for implementation atproject entry was not completed for the UEM component.

4. Achievement of Objective and Outputs

4.1 Outcome/achievement of objective:The achievement of objectives and outputs under the project was "satisfactory", considering the eventsthat Mozambique had endured since the project preparation, such as emerging from the civil war, politicaland economic transformation, as well as severe natural disasters.

UEM Component: The development objective of UEM was "to expand the quantity and improve thequality of university graduates". The achievement is rated "highly satisfactory". While seriouschallenges exist, UEM has been strengthened academically and is of higher quality compared to what it wasin 1992. The most recent data show that the number of students graduating annually from UEM hasincreased five times during the project implementation period between 1994 and 2001, from 148 in 1994 to695 in 2000. At the same time, the internal efficiency of the UEM system has also improved considerably.For instance, the percentage of graduates who complete all degree requirements within the officialprescribed time has increased from 5 percent in 1997 to 15 percent in 2000. Moreover, the quality ofeducation, measured by the students' average examination scores, has improved. The overall averageexamination pass rate has improved from 39 percent in 1994 to 53 percent in 2000. Additionally, thequality of teaching and administrative staff has improved through training and effective staff retentionmechanisms. In 1992, there were only 17 percent of full-time Mozambican teaching staff who helddoctoral or master degrees; this has now increased to 46 percent as of 1999 (largely exceeding the target of32 percent as stipulated in the SAR).

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EPU ComDonent: The development objective of EPU which was "to enhance the quality of pre-universityeducation" is rated (marginally) "satisfactory". In addition to the implementation of most plannedactivities (textbooks, training etc.), the internal efficiency as a measurement of enhanced quality in teachingat EPU improved during the project implementation. The repetition rate in EPU has declined from 17percent in 1994 to 10 percent in 2000. The drop-out rate has also declined from 7 percent in 1994 to 3percent in 2000. At the same time, the graduation rate has improved 14 percentage points: from 40 percentin 1994 to 54 percent in 2000. Regrettably, the graduation rate for female students does not change much:50.6 percent in 1994 compared with 51.4 percent in 2000. The quality of education has also improved asmeasured by student performance at the national examinations. The average pass rate at examinationsincreased from 59 percent in 1994 to 66 percent in 2000, in alignment with an improved pass rate forfemale students from 54 percent in 1994 to 64 percent in 2000. Nevertheless, this component experiencedsignificant delays and the issues of low quality still persist.

These achievements and problems should be viewed against the backdrop of the Government's decision toexpand and open-up education to its people, thus, shifting its resources and efforts towards this expansion.During the implementation of the project, enrollment at public EPU schools increased rapidly from 3,654students in 1994 to 12,000 in 2001. This achievement was about 50 percent higher than the target of 8,300students in EPU by 2000 as set by MINED. When the project was appraised in 1992, there were only 5public EPU schools in the country (information for private EPU is not available at MINED); this numberhas now grown to 23 as of 2001. The number of graduates from public EPU has also increased three-foldfrom 637 in 1994 to 2,221 in 2000. In addition, the enrollment number of female students has increasedfrom 1,271 in 1994 to 4,301 in 2001, while the number of female graduates has tripled from 258 in 1994 to823 in 2000. This growth was supported by the project's scholarship program in which more than 800female students were provided with school fees, supplies, and dormitory fees. Despite the rapid expansion,the enrollment share of female students has remained constant during the implementation period at 26percent from 1994 to 2001.

4.2 Outputs by components:UEM ComDonent (Part A)

UEM component is rated "highly satisfactory".

Subcomponent A.1: Educational Quality Improvements.This subcomponent, which aimed to upgrade educational quality and improve graduate output throughtextbook acquisitions, local textbook publishing, focused institutional linkages, additional library space,curriculum studies, and a university-wide computer training program, has met with considerable success.Under the project, 4,350 book titles were imported and 159 textbooks titles were produced locally. Acombination of imported and locally produced texts was provided for most of the introductory courses,which covered 20 percent of all courses offered. The targeted number of books distributed to each studentwas 5, but the ICR team's survey questionnaires to a sample of economics and engineering students foundthat each student has a range of 7 to 10 books, which exceeds the original target of 5. Moreover, theproject supported critical capacity-building needs in the UEM Faculties of Economics and Engineering thatwere addressed through a strengthening strategy based on linkage agreements with selected universitieslocated outside the country. The Faculty of Economics has greatly benefited from provision of equipmentand research work but to a lesser extent from foreign teaching staff. The majority of the foreign teachingstaff stayed in Maputo between two and four weeks, but a handful stayed one semester or longer. By somestaff this was perceived as too little time to transfer capacity. On the other hand, the Faculty ofEngineering has benefited from foreign teaching staff who taught from one semester to a year although theFaculty was not able to purchase all the equipment they had originally planned due to the late

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implementation and closure of the project.

As originally planned, libraries and reading space serving the faculties of agriculture, architecture,economics, veterinary and medicine were expanded during the period of the project. In addition, studies oncurriculum and distance education were undertaken and are currently being incorporated into the process ofthe on-going curriculum reform and new distance education program. They make up integral parts of thenewly approved first Higher Education Project for Mozambique. Moreover, the project supported theacquisition of computer equipment with the assumption that the program was designed to integrate with theexpansion of the information and technology network within the UEM. Training in information technologywas locally organized for the departmental staff charged with teaching responsibilities. Computer trainingwas expanded as a requirement course in all university departments. One outcome is the establishment ofan 'Internet Cafe' at the UEM, providing students with access to the internet on a cost-recovery basis.Currently, the UEM's Information Center offers computer-training courses not only to its students and staffbut also to non-matriculated people as a source of generating revenue. Moreover, additional activitiesachieved included the satellite system (Vsat), the financing of the e-mail system, and the planned EMUNet- LAN infrastructure, which will form the structure to improving administration and learning.

Subcomponent A.2: Housing for Staff Retention.All civil works in this subcomponent were completed and their targets were met with the construction of189 new staff apartments and the rehabilitation of an additional 108 staff apartments. However, the lack ofaffordable housing in Maputo continues to be a problem. The ICR mission confirmed that staff housing isa very important subcomponent to promote the quality of education since it has helped to attract and retainskilled academic and administrative staff by providing immediate access to housing as a short-termrecruiting and retention incentive, and ensuring staffing stability over the long-term by offering thepossibility of home ownership linked to the length of services.

Subcomponent A.3: Staff Development.The implementation of this subcomponent was smooth and the level of achievement was remarkable. Afellowships management plan was carried out with the stipulation to train an initial 19 Ph.D. students, 25Masters students, with various other short-term training courses within and outside Mozambique. Thetarget was exceeded by threefold and a total of 128 fellowships for professional training of academic andadministrative staff were granted during the project implementation. Of these, 41 were for PhD programs,51 Masters degrees, 24 Licenciatura (honors degree) and 12 Bachelor's degrees. Out of this total number,97 staff members have completed their studies and retumed to UEM. The remaining 31 staff members arestill pursuing their studies, which may last up to the 2002 academic year. As a result, the proportion ofUEM's Mozambican teaching staff with graduate degrees has increased from 17 percent in 1994 to 46percent (the target at the appraisal was 32 percent).

Subcomponent A.4: Ensuring Regional and Gender Representation.The planned construction and equipping of two students' on-campus residences and a student social hallwas altered to simply rehabilitating the existing facilities to make them more amenable for student livingdue to the necessity of the rehabilitation of existing buildings. The rehabilitation of 6 student residencebuildings was completed and the work improved accommodation for a total of 717 students, out of which180 were new bed spaces with other social facilities. As a result, during the implementation period, thenumber of students who lived in on-campus residences increased by 53 percent from 696 in 1994 to 1,063in 2001, while the number for female students increased 32 percent from 107 to 141. Moreover, the projecthad envisaged to achieve the provision of adequate space for female students and students comingfrom theprovinces. This goal was partially achieved by converting the 'Colmeia' Hostel to a girls' hostel with anallotment of 176 beds. In spite of this, there was still insufficient space for girls and no attempt was made

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to supply accommodation for other students coming from the provinces. According to the Director of theSocial Services (who manages the student dormitory), the priority of selection is given to female students ingeneral and currently, there is no female students on the waiting list. All the students who are eligible toapply for dormitory space are from the provinces (students from Maputo City are not eligible). In addition,the ICR team confirmed that the provision of students' residence is crucial in raising student enrollmentfrom the provinces especially since the housing situation in Maputo is such a severe problem.

Subcomponent A.5: Rehabilitation of the UEM Physical Plant.The rehabilitation of the UEM Physical Plant was achieved and in the process, critical capacity has beenbuilt. Rehabilitation of the physical plan presented an opportunity to rectify over 20 years of neglect andrestore the university's current buildings to an acceptable state of repair. Besides the additional library andreading space in the 5 faculties as well as the new bookshops, the faculties of architecture, veterinary,medicine, engineering were all rehabilitated and upgraded. One new student residence was created (KarlMarx) and the existing student cafeteria renovated. Overall about 50% of the university infrastructure (or25,000m2) was rehabilitated as planned. In addition, a "design and implementation of building maintenanceprogram" was carried out, which included the procedures and training activities for staff responsible for themaintenance of the buildings. As part of the training, staff attended short-term courses outsideMozambique, including participation in conferences and study tours to South Africa. Systematicgovernment budget allocation for maintenance continues to be a problem despite the inclusion of a covenantin 1998 to address this issue [it had been stipulated that "the Borrower shall cause UEM to: (i) open amaintenance budget line and allocate for 1995 an amount representing 0.19% of the replacement value (persquare meter) of the University physical plant (517,000 Mz); (ii) increase the budget line for 1996 to765,000 meticais representing 0.26%; and (iii) increase the maintenance budget line gradually to 0.5% bynot later than December 31, 1999"].

Subcomponent A.6: Strengthening of Management and Accountability Capabilities.Significant capacity has been built at UEM in the area of administration, management and financialmanagement. In order to strengthen management capacity, management training for key academic andadministrative staff was conducted through short-term courses and seminars locally and abroad. Over 24different courses (e.g., project management, management of data information, and procurement courses)were attended by 1,883 participants including academic and administrative staff. Moreover, thestrengthening of the GIU's technical and administrative capabilities was accomplished through theparticipation in physical infrastructure management courses in South Africa and study visits to SouthAfrican Universities.

During the appraisal, the UEM proposed to strengthen its accountability to the government, its donors, andsociety in general by: (a) publishing an annual report which not only analyzes its institutional performanceand provides key indicators and statistics, but also includes a financial statement; (b) organizing annualmeetings for representatives of government donors and the private sector in which the annual report andcoming year's work plan are discussed; and (c) producing semestral activity reports at the Faculty level foryearly discussion with representatives of relevant govermnents, donor and private sector institutions.Annual reports and semestral activity reports were produced but annual meetings had not been held since1995.

Another important outcome of this is the implementation of the financial management plan. With theassistance of an external consulting firm, new financial procedures, training of staff and decentralizedoperation of bookkeeping to each faculty were completed. For the new Financial Management System(FMS), information technology training was offered to the relevant staff, and various procedures manuals

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and handbooks for accounts and management staff were prepared. Moreover, an Internal Audit Office wascreated with one of the two professional auditors on board. With the new FMS, regular internal auditswere instituted for both donor and internally generated funds. Regular external audits were introduced andcovered all UEM funds in the External Audit for the financial year ending 1999 and 2000, while anAudited Financial Report for the year ending 2000 was approved. As a result of this work, in 2000 UEMwas able to increase its financial autonomy from the Ministry of Planning and Finance, thus, moving to aquarterly budget allocation formula.

Overall, as a result of this capacity building effort, UEM was able to finance and direct the development ofa national strategy for higher education, which led to the preparation of the new higher education project.Finally, UEM has put in place a new and more decentralized implementation structure for the new project.

EPU Component (Part B)

EPU component is rated partially "satisfactory" as follow:

Subcomponent B.1: Improvement of Educational Quality.This subcomponent was partially achieved. Despite the improvement in the intemal efficiency, the politicaldecision to expand rapidly the intake of students meant that the project had limited impact on improving theoverall quality of the upper secondary level. For instance, although the number of qualified teachers (whopossess either a bachelor's degree/Licenciatura or a higher degree) has increased from 140 in 1996 to 368in 2001, the overall share of qualified teachers has declined from 90 percent to 76 percent during the sameperiod because of this rapid expansion. Another important feature is a general lack of interest to pursueteaching by university graduates due to the high salary incentives in the private sector. On the other hand,the proportion of qualified teachers among the 5 existing schools at project appraisal has remained thesame during this period (92 percent). Moreover, one of the major factors affecting the quality of secondaryeducation has to do with teaching and learning materials. Under the project, 8,140 textbooks and 130encyclopedia were purchased and delivered to EPU school libraries. Textbooks were delivered to schoolsas planned but due to the rapid increase in student numbers, teachers were given very little reference orinstruction materials to the extent that in some cases, teachers had to revert to the notes that they took whenthey themselves were students.

The project supported the development of a new curriculum and examination system. The new curriculumwas implemented in 1995 after staff and teachers from the MINED, UEM and UP participated in a seriesof intensive discussion seminars. The process of preparing examination questions involved proposals madeby school subject specialists, and evidence gathered indicates that questions have been consistent with thecourse materials. On the whole, it was felt that examination questions have improved. Moreover, teachers'guides for all the subjects at the secondary level were prepared and distributed to schools, and studies ontextbook production and distribution were carried out. While recommendations for book production weremade, production costs were deemed prohibitive and as a result, the plan did not proceed. Overall, bookutilization has been and continues to be very poor in most schools.

The Ministry carried out pedagogical seminars and periodic training at national and provincial levels,which covered both management and pedagogical issues. The training programs have tended to beunsystematic and irregular. Coverage has generally been too little to achieve substantial impact. On theother hand, the design and implementation of a training strategy by ISP (now Pedagogical University - UP)was realized with the introduction of new courses in technical drawing and philosophy. In cases where UPhas satellite campuses, it has been possible for tutors of UP to assist with pedagogical support to secondaryschool teachers. A staff development program for NDSE was implemented, and 25 school directors and

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head teachers of pedagogy attended a three-month training course in Portugal. Several staff at NDSE havebenefited from English language courses in Zimbabwe, while others have gone for distance leamingseminars in Botswana. On the other hand, the implementation of measures to increase the supply of EPUteachers met with limited success because of the lack of attractive incentive packages in the public sector.Very few UP graduates opt for teaching and as a result, many schools are staffed by under-qualifiedteachers.

Subcomponent B.2: Stabilzation of the EPU Network - Civil Works Program.This subcomponent was largely achieved. The original plan in the civil works in EPU component was therehabilitation, equipping and physical expansion of 6 EPU schools, the rehabilitation of one dormitory andconstruction of 4 new students' dormitories, and construction of 43 new staff houses. The projectsupported the rehabilitation of 4 EPU schools and the construction of one new school. Since the Bank'sSecond Education Project supported one of the planned school rehabilitation, the target of sustaining 6EPU schools was fully met. However, the ICR mission identified that the quality of rehabilitation in twoEPU schools in Maputo and Beira was not adequate because the buildings appear to be back topre-rehabilitation condition. This raises serious questions about the quality of supervision and inspectionsby GEPE. Two new dormitories, which would provide accommodation for 455 and 256 students inQuelimanne and Xai-Xai, respectively, were successfully completed. Conversely, the construction of newdormitories in Beira and Maputo was cancelled due to the high costs vis-A-vis available funds. Therehabilitation of the dormitory in Nampula was not carried out due to the ownership issue of the property.Construction of teacher residences was accomplished as originally planned although in some instances notall houses were put to teachers' use as they were still used by education personnel. In one particularinstance, only 50 percent of the houses built in Nampula are occupied by the EPU teachers, while theothers are occupied by UP and technical/vocational school teachers as well as a ESG administrator. TheDirector of the school expressed concern as this resulted in jeopardizing his ability to attract qualifiedmathematics teachers.

Subcomponent B.3: Building Management and Administrative Capacity.This subcomponent was partially achieved. The preparation and dissemination of materials on financialmanagement, school regulations and planning was partially accomplished. General regulations for schooladministration were produced and disseminated; however, materials for financial management were notprepared. The problem encountered was a general lack of guidance on whether or not the management ofschool finances would be decentralized. The provision of short-term overseas training in planning, schooladministration, and educational technology for NDSE and EPU administrators was partially carried out inthat some staff members were sent for training in Portugal. In addition, the strengthening of GEPE'sstaffing and office support was carried out to the extent that GEPE was able to hire legal services and torecruit a civil engineer/manager, a procurement officer and project accountant. On the other hand, thestrengthening of Management and Coordination Capabilities of the Project Technical Unit of NDSE wasmarginally accomplished. The project was only able to support the coordinator of the Girls' Scholarshipprogram.

Subcomponent B.4: Improvement of Enrollment of Female Students.This subcomponent, despite administrative problems, exceeded its target four-fold. The project was able tosupport a large number of female students through scholarships although it had less impact on students'achievement. Only 280 scholarships were envisaged at the design stage to cover all school fees, schoolsupplies and textbooks, housing, and transportation in primarily 4 EPUs from Beira, Natnpula, Quelimaneand Xai-Xai. Each scholarship was initially estimated at US$50 per month. This amount was, however,reduced to US$15 to allow for an expanded coverage to all female students at both levels of secondaryeducation. In addition, the Government saw it prudent to include needy boys, albeit in a selective manner,

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into the program. As a result 1,158 students benefited from the program.

The implementation of this sub-component not only experienced significant delays in the disbursement ofmoney and the selection of candidates but also bureaucratic bottlenecks at many levels. Moreover, whilethe emphasis of the criteria was clearly on supporting needy girls preferably from rural areas, evidenceshows that the guidelines were not fully adhered to by the provincial staff. While no systematic impactassessment to evaluate the performance of the program toward achieving its objectives was ever conducted,there is evidence that its existence played a major role in motivating girls to remain in school. The programcould have benefited from deliberate interventions that would have increased the supply of female teachers.The Staff Appraisal Report identified female teachers as one of the key factors that could increase theenrollment rate of female students, but no direct interventions were put in place to deal with the problem.On the contrary, the share of female teachers declined significantly from 16 percent in 1994 to 6 percent in2001.

4.3 Net Present Valute/Economic rate of return:No attempt was made at appraisal to estimate the net present value (NPV) or economic rate of return(ERR), thus there is no baseline against which to judge a re-estimate for evaluation purposes.

4.4 Financial rate of return:No attempt was made at appraisal to estimate the financial rate of return (FRR) and therefore there is nobaseline against which to judge a re-estimate for evaluation purposes.

4.5 Institutional developmient impact:The ICR team rated the institutional development impact as "high" for the UEM component, "modest" forthe EPU component, and "substantial" for the overall rating.

UEM: The project significantly contributed to the institutional development impact in promoting thequality of teaching/administrative staff through the provision of graduate fellowships and short-termtraining to staff. In addition, a large number of staff houses was constructed and rehabilitated. Almost allof the trained staff are still being retained at UEM. Moreover, various aspects of institutional developmentincluded the establishment of EMUNet, local book production, bookstores, and the rehabilitation oflibraries. The GIU and Project Implementation Unit (PIU) gained experience in managing civil works andfinancial management/procurement matters, respectively. The experiences acquired from the project hasalso enabled UEM to come up with its new strategic plan, which became the basis for the higher educationstrategic plan in Mozambique and the new higher education operation. The new ministry (MESCT) andUEM recognize the importance of continued effort in strengthening institutional capacity to deal with theconstraints and challenges the sector is currently facing. For instance, the following include increasedgraduation rates; improved general policy coordination; and increased monitoring of sector performance.

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EPU: Overall the institutional impact under the EPU component has been modest. Although limitedinstitutional capacity has been created at the MINED (NDSE) level, some positive capacity has been built.As a result of teaching at EPU schools or university, a majority of the technical staff in the NDSEdepartment has become more familiar with educational planning and administration. School directors andheads of pedagogy attended seminars in Portugal, while teachers attended pedagogical seminars that wereorganized by the NDSE. NDSE staff were able to make supervisory visits to secondary schools. Inaddition, NDSE staff participated in the preparation and review of the new curriculum, examinationquestions setting and reading materials. At least 6 subject specific seminars were organized over the periodbetween 1996 and 1999.

When the project was first prepared, the Provincial Directorates of Education were not functioning well dueto the civil war. However, as the Directorates evolved into playing an important role in the administrationof the girls' scholarship program, they have also provided overall supervisory services to the EPUs ingeneral.

5. Major Factors Affecting Implementation and Outcome

5.1 Factors outside thle control oJfgovernment or implementing agency:Positive factors: In the period after 1995, the excellent relationship between the World Bank and UEMcontributed positively to the implementation of the UEM component and the early inclusions of lessonslearned into the follow-on operation. The Bank's flexibility and responsiveness to needs, such as thosefollowing the floods, is stated by the Government as one of the key positive factors affecting theimplementation.

While the move from war to peace and the Government focus on the development of the country arepositive factors, they inevitably pose a negative influence on the attention given to the project.

Negative factors: Floods and cyclones affected the rehabilitation, equipping and physical expansion ofpre-university schools in 1998, 1999, and in particular 2000. Moreover, during the implementation of theUEM component there was a serious shortage of funds to cover both operating costs and counterpartinvestment costs, which threatened to halt implementation, particularly the planned rehabilitation andconstruction work (UEM did not have the revenue to support its negotiated share of 20 percent). The issueof the counterpart fund was resolved during the mid-term review (MTR) in 1996, when the counterpartshare was reduced from 20 to 15 percent. Despite this reduction, the lack of counterpart funding persistedthroughout the remaining period. The issue was continuously addressed during supervision missions andlisted as one of the major problems for the delay of civil works; this concern was also presented in thelarger context of the Bank's Mozambique portfolio reviews in 2001. Due to these as well as other negativefactors listed below, the project closing date was initially extended by 12 months largely to complete thecivil works activities. Following the floods, the project was further extended for another 15 month toprovide the government with the financial resources for the emergency rehabilitation work.

5.2 Factors generally subject to government control:Negative factors: Overall the project suffered from political impasses and internal disputes at the level ofthe Inter-Ministerial Committee (IC), in which the World Bank was also involved. For example, the ICwas responsible for the confirmation of the appointment of the project coordinators which delayed theeffectiveness of the Credit. Much of the Bank's effort was focused on resolving these issues andmaintaining the relationship with such key players as the Ministers of Justice, State Administration andPlanning and Finance. Eventually, and after the elections in 1994, these issues were resolved when thecommittee was dissolved.

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5.3 Factors generally subject to implementing agency control:Positive factors: After the MTR, the positive and open attitude of the UEM staff towards addressingproblems and issues greatly assisted in accelerating the implementation and disbursements.

Negative factors: Under the UEM component, the slow implementation before the MTR in 1996 weremainly due to delays in the establishment of the PIU, the appointment of a project coordinator and a lack ofinstitutional capacity in GIU to implement activities agreed to for the first year. Later on, the projectcoordinator left the position and this affected project knowledge, continuity in the handling of certainmatters as well as management style. After 1996, despite an accelerated disbursement rate, two of theconstraints - lack of dedicated full-time staff and unfamiliarity with the Bank's procurement procedures -were also identified as primary causes of delays in project implementation. This related particularly to thequality of tenders and evaluations, and the absence of a Bank procurement officer in the Country Officefrom whom quick advise could have been sought.

EPU component: In the period before the MTR in 1996, project performance was negatively affected by thelack of coordination between NDSE, MINED and GEPE which resulted in a lack of general coordination;this in tum led to low levels of outputs in the quality of education. With a limited number of staff and poorknowledge of Bank procedures, the NDSE was not able to prepare lists of activities to be carried out orgoods to be purchased. Other reasons for the delayed civil works include: a) construction time wasunderestimated by the client in the bidding document; b) there was a problem in the supply of materials asmany building materials were imported, even from Portugal; c) transportation problems and unexpectedchanges in customs regulations and import facilities. In addition, bidding documents for the rehabilitationwere prepared by inexperienced junior technicians instead of fully qualified professionals and as a resultmany important problems, such as the estimation of costs, were overlooked. Moreover, the MTR missionidentified the reasons for the slow implementation in that the NDSE was unprepared for the responsibilitiesthat were being assigned to it. For instance, at the top, senior officials were not able to manage projectfunds efficiently, and for a while, there was simply no director for the sub-sector; there was also very littleexecutive vocation found among the staff. Conversely, since the new DNES Director was appointed in1996, activity preparation procedures and project performance have improved.

5.4 Costs andfinancing:The total estimated cost of the project at the time of appraisal was US $60.3 million. The IDA credit wasestimated to cover 81 percent of the total project cost at US $48.6 million. The govemment counterpartfinancing was estimated at US $10 million, while the anticipated financing from the beneficiaries amountedto about US $1.6 million. The total latest estimated costs of the project at completion (US $ 54 million), asobtained from the implementing agency records, do not include contribution from the beneficiaries.

As of February 15th, 2002 the Capacity Building Project has disbursed US $54 million of the total projectcosts, which is equivalent to a sum of US$44 million or 94 percent of the IDA credit. It has an undisbursedIDA credit balance of US $2.6 million which will be cancelled. Under the UEM component, 103 percent ofcredit funds were disbursed with substantial outputs, while most rehabilitation of EPU schools under theEPU component was completed at the acceptable cost levels. However, due to delays from the seasonalfloods and high costs of transportation and imported materials, some of the rehabilitation works exceededtheir planned costs. This included the costs of the new EPU school in Xai-Xai as well as studentdormitories in Xai-Xai and Quelimane.

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The lack of counterpart funding, which was early on a cause for the delays of civil works, remained anissue throughout the project period until the share of counterpart funding was reduced for civil works from20 percent to 15 percent at the MTR. During the project implementation, the Bank approved the transferof funds as follows: under the UEM component US $1 million was moved from civil works to operationcosts in 1994; in 1998, UEM and EPU each received 50 percent of the funds from the UnallocatedCategory. UEM used the money for consultancy services (mainly for additional training and financialstrengthening of the university) and equipment (especially transportation for students and computers), whileEPU proposed to use its share on civil works and furniture. Moreover, an amount of US $850,000 wastransferred from the EPU component to UEM in 2001 in order for UEM to implement the EMUNetsub-component provision for the LAN infrastructure.

Depreciation of SDR: The Governnent lamented the fact that about US $2 million was lost due to theappreciation of the US dollar against the SDR.

6. Sustainability

6.1 Rationalefor sustainability rating:Sustainability is rated as "likely".

UEM: The overall improvements in UEM that the project supported are considered to be sustainable (highly likely) for the following reasons:

Government Ownerships: There is very strong commitment and ownership within UEM and theGovernment. Overall the current policy environment is excellent and conducive for the continuance ofimplementation. This commitment is further manifested by the establishment of the new Ministry of HigherEducation, Science and Technology (MESCT) in 2000 and the development of a system-wide highereducation project approved by the Council of Ministers. UEM has prepared its own strategic plan for thenext 10 years from the experience gained in the Capacity Building Project. This became a base for theBank's new Mozambique Higher Education Project, which is expected to be effective by June, 2002. Thisproject will present continued support to UEM through the year 2007.

Technical Aspects: The increased number of trained teaching and administrative staff is likely to beretained within UEM but at the same time, they are threatened by continued excess demand for qualifiedstaff elsewhere in the economy.

Economic/Financial Aspects: The economic and financial sustainability of UEM is very probable althoughit has had difficulty allocating and maintaining resources, and will continue to be dependent on donorcontributions. In the past three years, the share of donor contribution (including both credit and donation)ranged from 30 to 50 percent of the university's total expenditure while its intemal revenue accounted forless than 1 percent. Consequently, the Government (Ministry of Planning and Finance) agreed to increasethe share of the higher education sub-sector as a percentage of the whole education sector from 23 percentin 2001 to 25 percent in the next three years. This amount will be spent on improving the efficiency of thehigher education sub-sector. UEM has embarked on a policy of increasing cost-recovery beginning 2002among which is increased tuition fees. In addition, a new Higher Education Project will support the UEM'srevenue generation from the services that will be provided, which includes catering, the opening of thelibrary to the public, computer and internet services, hospital services and consultancies on research anddevelopment with various organizations. If the internal efficiency of the higher education system were to beimproved (i.e. an annual increase of 5 percent in graduation rates) through the implementation of the newHigher Education Project, the efficiency gains from this measure at UEM will be around US$ 10 million by

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the end of 2006.

EPU: The sustainability of the EPU component is considered to be "likely".

Government Ownership/Other Stake Holders Involvement: MINED has adopted the sector-wide approachwith primary education as the priority sub-sector within and outside of MINED. Through the ESSP andthe new Higher Education Project, the Bank will continue to support upper secondary education (EPU)through the construction of ESG schools, teacher housing, and provision of study materials. At the time ofappraisal in 1992, no donor agency was supporting EPUs; however, the British (DFID) is presentlysupporting the development of the strategic plan for secondary education.

Technical Aspects: The increased number of trained teaching staff is likely to be retained but at the sametime, it is threatened by continued excess demand for qualified staff elsewhere in the economy. As a result,many of the graduates from the Pedagogical University (UP) do not choose teaching careers at EPU.Moreover, nearly 25 percent of the teaching staff in EPU schools are academically unqualified (e.g., at theJoaquim Chissano EPU). The new Higher Education Project (HEP) has already identified that an adequatesupply of well trained secondary school graduates is central to MINED's efforts to improve the quality andefficiency of secondary education. The UP plays a key role in this regard as the institution responsible forthe training of secondary school teachers and the training of trainers for primary school teachers. The HEPwill support UP with the implementation of its plan to improve the quality of its programs and to broadentheir scope. A critical element will be to upgrade current EPU teachers through distance educationmodalities. The Minister of Education and the Minister of Higher Education has already agreed to developa joint strategy for distance education. Finally, MINED has decided to absorb a significant number ofGEPE staff into the ministry structure and has integrated the implementation of the ESSP into its regularstructures.

Economic/Financial Aspects: The overall government expenditure to the MINED has declined but in themeantime, the share for pre-university education has increased. The total expenditure on MINED as apercentage of GDP has declined from 4.4 percent in 1996 to 4.0 percent in 1999, while the recurrentexpenditure share of EPU (upper secondary education) has increased from 2.9 percent to 4.5 percent duringthe same period. According to the Ministry of Planning and Finance (MPF) proposal, about 10 donoragencies, including the World Bank, will be lending support to the MINED and the total expenditure onMINED (as a percentage of the total education expenditure) will decline slightly from 77 percent in 2001 to75 percent in the next three years.

6.2 Transition arrangement to regular operations:As mentioned above, since the new Bank's Higher Education Project will be in continuous support ofUEM, and with ESSP currently supporting the EPU (upper secondary education), the transition to regularoperations will take place smoothly. This transition is also supported by key technical staff who werepreviously involved in the implementation of the Capacity Building Project.

7. Bank and Borrower Performance

Bank7.1 Lending:The Bank's performance at identification and appraisal is rated as "satisfactory". The Bank's performanceduring identification and appraisal is very adequate, considering the state at which the country was in1991/92. Due to security reasons, it was very difficult to conduct a thorough assessment of project

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components (except for those within the city boundary). The project was well documented and designedwith the integration of the government strategy, CAS and ESW. It also identified key risks and ways tomitigate them.

7.2 Supervision:Supervisions were done through regular supervision missions and continuous assistance from Bank staff inthe country office where the task manager resided until 1994. However, the Bank's supervision needs to beevaluated in two distinct phases: the period before the mid-term review (MTR) which was held in 1996,and the period after.

Between July, 1993 and May, 1995, there were numerous missions, but only one formal supervisionmission was documented per year. Also, three out of the four formal supervision missions (excluding theproject launch mission) before the MTR were conducted by only one person, the task manager. Partially asa result of a lack of skills mix, the supervision mission's response to the immediate concerns in the projectimplementation was slow. This was reflected in several key issues related to the establishment of theProject Implementation Unit (PIU) at UEM, full staffing of Project Implementation Units (both GEPE andGIU), and borrowers' unfamiliarity with Bank's procurement procedures. By May 1995, only 5 percent ofthe credit had been disbursed. The project was down-graded to "unsatisfactory" on the implementingprogress before the MTR, but it should probably have been down-graded earlier. However, it should berecognized that at the time both the Bank (and task manager) and the Government were heavily engaged inand preoccupied with the election process. This, combined with changes in the leadership at UEM andMINED just after the elections not only affected the policy dialog with the Bank, but also the Government'sresponse to pending issues. Concurrently, the Bank's supervision was not getting adequate support asidentified by a significant decline in the supervision expenditure: from US $77,000 in 1994 to US $47,000in 1995 and US $57,000 in 1996.

However, after clarity and a level of political stability had returned, the Bank's MTR supervision in 1996provided far-sighted and constructive intervention to move the project up from an "unsatisfactory" to a"satisfactory" status. After the MTR, the Bank became more proactive and flexible in resolving problemsrelated to the reduction of counterpart funds for civil works and to the reallocation of funds from theunallocated categories in the DCA amendment. The Bank's supervision was also proactive in theday-to-day management of the project, which contributed to the project's satisfactory status, resulting inextensive supervision mission aide-memoires. As a result, disbursements accelerated after 1996.Moreover, the Bank provided intensive support to the clients during the year 2000 flood emergency byextending the project's closing date and allowing for a reallocation of resources. One of the mostsuccessful collaborative efforts was the development of a national strategic plan for higher education,financed by the project, and the subsequent development and preparation of the new Higher EducationProject approved by the Board on March 7, 2002 (this allowed for the inclusion of lessons learned from theimplementation of the UEM component). On the other hand, the Bank supervision did not report on D.O.indicators throughout the project implementation.

7.3 Overall Bank performance:The overall Bank's performance is rated "satisfactory". The most positive aspect was the Bank'spro-activeness and flexibility in providing clear and adequate guidance to the Borrower on various elementsand platforms of project implementation through an ongoing dialogue and the preparation of the newHigher Education Project. The satisfactory accomplishment of development objectives and output ofcomponents should be credited to both the Bank and the Borrower.

Borrower

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7.4 Preparation:The government preparation performance is rated as "satisfactory" - "satisfactory" for the UEMcomponent and "marginally satisfactory" for the EPU component. During the preparation of the project,there was a relatively high degree of government ownership and stakeholders' involvement, particularly atthe level of the Inter-ministerial Committee (IC), which has been providing the leadership and direction forthe project. While levels of commitment were very high at UEM compared with the National Directorate ofSecondary Education (NDSE) at MINED, GEPE was nevertheless considered one of the bestimplementation units at the time. Concurrently, MINED was in general understaffed and overburdened,drawing on support from the outside. The project design for the UEM component was prepared by acommittee of five senior UEM staff members who worked under the Rector's direct supervision.Representatives of the university department were also involved in working groups, which developedspecific sub-components of the proposal. On the other hand, on many aspects, the Bank took on aleadership role in the preparation of the EPU component given the low level of commitment at MINED andNDSE. The school Directors, however, participated in the workshops in which the project componentswere discussed and reviewed.

7.5 Government implementation performance:The overall Government implementation performance is rated "satisfactory". Although many aspectscould be criticized, like the inability to make timely decisions or dissolve the Inter-ministerial Committee inwhich members were preoccupied by the election process, the leadership and members' attention to thepost-war period and first democratic elections were both desirable and critical for the continuation of thepost-war construction period. These factors were largely outside the control of the Government and beyondtheir resources at the time.

7.6 Implementing Agency:The overall performance of the implementing agency is rated as "satisfactory" - "satisfactory" for UEMand "partially satisfactory" for EPU. Before the MTR, UEM encountered difficulties in allocatingcounterpart funds, which caused delays in the implementation of civil works, while MINED/NDSE lackedleadership and ownership of the project, leading to heavy dependence on GEPE to initiate almost everyaction. After the MTR, the Borrowers' implementation performance gradually improved over the life ofthe project.

At UEM, the performance improved remarkably after a new Project Coordinator was appointed in 1995and almost all of the activities were completed at the satisfactory level. All the planned civil works werealso completed although most of them were implemented only in the final 3 years of projectimplementation. Whereas under the EPU comronent, despite the improvement in implementation duringthe second half of the project, the supervision of rehabilitation and construction was not adequate. TheICR mission identified that rehabilitation of some school buildings has not been successful and that thebuildings are back to pre-rehabilitation condition. For instance, there is serious rainwater infiltration on theroof and the low-lying changing rooms are perrnanently under water. This, as previously stated, relatespartly to the low quality of civil works supervision by GEPE. Even though GEPE (the implementingagency) specialized in civil works, its lack of experience gave rise to such outcomes. Furthermnore, asGEPE had no experience in the delivery of education services it eventually resulted in a dysfunctionalrelationship with MINED.

7.7 Overall Borrower performance:

Overall Borrowers performance is rated as "Satisfactory".

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8. Lessons Learned

The Higher Education Project benefited and future projects may benefit from the following lessons learned:

* Coordination and authorization through an Inter-Ministerial Committee (refer to 3.1; 7.4): Crossconditionalities and invested decision making to an Inter-Ministerial Committee e.g. for theappointment of project coordinators, are difficult to manage and can create unnecessary complicationsleading to delays. Committees at this level should be involved in the overall progress evaluation,strategic directions and policy guidance.

* Implementation through external PIU (3.1): To ensure effective learning outcomes and adequateownership, project activities should be implemented through Ministry structures. This will also ensurecloser collaboration with end-users in the procurement decision process and adequate alignment withgovernment recurrent budget allocations. Finally, where necessary, project staff should have clearterms of reference and clarity in their report inside the Ministry/university structures.

* Bank's responsiveness to change/flexibility in design and allocations offunds (7.1; 7.2) areincreasingly becoming the critical features of successful projects. Both social and economic context, ofa project or country can change so rapidly and dramatically. Only projects where the design alongsideBank's flexibility would be able to accommodate these changes, will the project be aligned withGovernment priorities and therefore enjoy full political support and ownership.

* Knowledge of Bank procedures, procurement andfinancial management (5.3; 5.4): Good projectprogress and accelerated disbursements are closely related to the Borrowers' experience and knowledgeof Bank procedures, and not just capacity per se. Forward planning, continuous training in Bankprocedures, and high quality in the procurement processing and cash flow management aredeterminants of an effective implementation. The support of international or national consultants earlyon in the project phase can be critical for determining the time before adequate capacity and experienceis in place.

* Ownership, continuity and trust (7.2): Clear ownership by the people involved in the implementationof the project and long term continuity in the Bank team builds trust and insight easing implementationand maintaining a common focus on entailing strategy.

* Rehabilitation vs. new construction (4.2): The Bank's experience in civil works has predominantlybeen in construction of new structures. Rehabilitation is also becoming an important area for Bankfinancing as more countries wean themselves out of civil strife and experience natural disasters.Rehabilitation is not only complicated but it is also specialized work. An important lesson though isthat sufficient detail needs to be put into the design work through adequate elaboration of consultingengineers TORs to avoid unnecessary addenda during implementation. In addition, it is important toexercise tight supervision and monitoring of costs by both the client and the Bank.

* Capacity Building (4.2): To promote capacity building within institutions, project activities should notonly be limited to staff development, such as training, but they should also look at the broader issues ofstaff retention and non-salary incentives. One of the main successes of the project has been its highstaff retention rates due to staff incentives and staff motivation policies. While staff incentivesincluded the allocation of time to academic staff to provide part-time services to the p ivate sector(part-time teaching in private institutions), staff motivation policies supported a home ownershipscheme where staff benefited from the house construction and rehabilitation program under the project.

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9. Partner Comments

(a) Borrower/implementing agency:Eduardo Mondlane University (see details in Annex 8):Execution of Activities:The project activities, in general, were satisfactory. There was flexibility in the inclusion of someactivities, which were not previously planned to be executed by the project. Until the project closing date inJune 30, 2001, the project registered a financial execution of 100.3 percent out of SDR 19,695, the amountallocated to the UEM. The additional execution of 0.3 percent represents the disbursement of US $7,590corresponding to SDR 6,500 drawn from the global amount of SDR 661,000 requested during the finalproject supervision mission, to be reallocated from Part B (MINED) to Part A (UEM) of the project, forthe financing of some activities which had been previously cancelled because of the exhaustion of fundsavailable.

Scope of the Objectives:Overall, the project objectives were attained and contributed toward the following: a) improvement of thequality of the teaching and learning process; b) improvement of the accommodation conditions for theteaching and administrative staff; c) improvement of the academic qualifications of the personnel; d)improvement of the accommodation conditions for students; e) rehabilitation of the partial physical plant ofthe UEM; f) beginning of the strengthening of the financial management system; and g) improvement of theaccess to internet.

Sustainability and Future Operation:The project activities are sustainable and will be continued in the scope of UEM Strategic Plan (PEUEM),with emphasis on: a) administrative efficiency; b) excellence and quality; c) development and financialsustainability; d) development of physical plant; e) stabilization and human resources development; f)increasing the number of enrollments; g) improvement of social conditions; h) assurance/iznprovement ofthe equity of gender; i) development of institutional twinning arrangement; j) simulation of the academicenvironment; and k) divulging the image of the UEM. These activities will be funded continuously by theGovermment of Mozambique, the World Bank's new Higher Education Project, and other donors.

Drawing Lessons for the Future Operation:* The Project Implementation Unit (PIU) needs to be established before the initiation of implementation

activities by the project, preferably during the phase of appraisal.

* The procurement function (analysis of the bidding document, analysis of the evaluation report andattribution of the respective "No Objections") should be decentralized in order to be handled by theWorld Bank's country office.

* The process of contracts awarding opens a room for equity in both quality and price, not only givingemphasis to the lowest price.

* In the implementation of the new project, the depreciation of SDR through an exchange rate mechanismshould be followed in such a way that funds of the credit will be maximized in favor of the beneficiary.

Ministry of Education (see Annex 9)

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Quality of Pre-university Education:As a result of seminars and studies carried out under the project, a new curriculum frame for thepre-university education (EPU) was designed in 1994, establishing three fields of specialization, A, B andC, according to students' perspectives for higher education. Implementation of the new curricular framestarted in 1995. A seminar for the review of the country's curriculum for upper secondary education and areview of its examination system was conducted in June 1996, resulting in the introduction of a new subject- philosophy - and the split of the then single subject "physics and chemistry" into two individual subjects.Moreover, as a result of studies and seminars realized under the project, a new exam system was designedand its implementation started in 1996.

Twenty-five EPU school directors and pedagogic directors benefited from training courses in Portugal anda number of technicians at NDSE attended English language courses and seminars in Zimbabwe andBotswana. With regards to EPU teachers' training, eleven national and three regional seminars on specificsubjects related to teaching methodologies were conducted. In addition, out of the project proceeds,technicians from NDSE carried out several pedagogic supervision visits to all EPU schools from 1994 till1999.

Altogether 8140 textbooks and 130 encyclopedia as well as various materials and supplies were purchasedfor school libraries. Didactic materials for sports, physical education and audio vision materials were alsopurchased for the EPU schools. Six punching and binding machines, 6 paper cutters, 18 projectors (andaccessories), 13 photocopying machines, 8 multi-copying machines and, 24 typing machines, 18computers, 12 printers were also purchased for EPU schools. Moreover, laboratory equipment forchemistry and didactic material for drawing were purchased for 6 upper secondary schools. Technicalspecifications for laboratory materials for chemistry and biology were prepared.

Stabilizing the EPU networklAll the six EPU schools proposed for rehabilitation or construction from grassroots under the project werecompleted although one school (Josina Machel EPU school) in Maputo was omitted from the projectbecause it had already been covered under the Bank's Second Education Project. The same cannot be saidfor the construction/rehabilitation of dormitories as only two of the proposed five dormitories were built.The construction of the other three donnitories had to be abandoned due to price overruns. The reason whythe project allocation for construction/rehabilitation of student dormitories was not enough to cover all fiveproposed dormitories was the high standard of the adopted design. A more modest design would cost lessand still meet the minimum comfort and functionality requirements generally accepted for secondaryschools student dormitories in Mozambique. The same is true for the design of the Xai-Xai EPU secondaryschool. A better understanding of the local climate and construction practice would have helped thedesigner to use a more appropriate and less expensive design. It is also obvious that the designer did nottake into consideration the budgetary limits for his design.

The quality of construction works can be considered good although most construction contracts spannedlonger than the contractual deadlines. This may be due to the unrealistic time spans stipulated by GEPE,and the inefficient network of supply of construction materials. In the case of rehabilitation works, thequality may be rated as regular, since some problems encountered before the rehabilitation were notresolved by the rehabilitation exercise. This may be attributable to the inexperience of the engagedconsultants in designing efficient rehabilitation remedies. It should be mentioned that this was the firstlarge scale rehabilitation exercise ever undertaken in the country at that time after an absence of more thantwenty years of building maintenance/rehabilitation activities in the country.

Building Management Capacity of EPUs and the National Directorate of Secondary Education:

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A national meeting of the secondary school directors was held in Maputo in October 1995 to discuss schoolmanagement techniques and problems encountered by school managers. In 1997, twenty-five schooldirectors were trained in Portugal in the fields of school administration and management.

Raising girls' Enrollment Rates at the EPUs:A number of female upper secondary school students throughout the country, except for Maputo, benefitedfrom scholarships (US $15 per student per month). The program started with 70 girls in 1994 and ended in2000 with 355 female students. The program could have reached more girls if it were not for thebureaucratic problems faced during the implementation of the program and the low geographical coverageof the banking network in the country, which made it difficult or impossible to channel these scholarships.

(b) Cofinanciers:N.A.

(c) Other partners (NGOs/private sector):N.A.

10. Additional Information

N.A.

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Annex 1. Key Performance Indicators/Log Frame Matrix

Outcome / Impact Indicators:

Indicator/Matrix - Projected In last PSR Actual/Latest Estimate

A 1: Increase the number of graduates PSR did not indicate development outcomes. Number of graduates increased from 151 in1992 to 695 in 2000.

A.2: Improve graduation rates PSR did not indicate development outcomes. Graduation rate increased from 23 percent in1992 to 49 percent In 1999. Percentage ofgraduates who complete all degreerequirements within the official prescriptiontme increased from 4.8 in 1997 to 12.9percent in 2000 (infomnation is not availablebetween 1992 and 1996).

A.3: Improve examination scores PSR did not indicate development outcomes. Pass rate on the finial examination improvedfrom 38.6 percent in 1994 to 53.2 percent in2000 (information is not available between1992 and 1993).

A.4: Improve drop-out and repetition rates PSR did not indicate development outcomes. Information Is not available.A.5: Improve quality of teaching staff The number of the Mozambican full-time The proportion of the Mozambican full-time

teaching staff who held doctoral or master teaching staff who held doctoral or masterdegrees Increased from 46 In 1992 to 204 in degrees has also increased from 17 percent1999. in 1992 to 46 percent 1999.

A.6: Increase student/teacher ratio Last PSR did not indicate development The student/full-time teacher ratio increasedoutcomes. from 6.9 in 1992 to 9.3 in 1999

B.1. Improve average examination scores as Last PSR did not indicate development The average examination pass rate in EPUwell as graduation rates outcomes. improved from 58.5 percent In 1994 to 66.0

percent in 2000. Graduation (completion)rate also improved from 40.0 percent in 1994to 54.2 percent in 2000.

B.2. Reduce drop-out and repetition rates Last PSR did not indicate development Drop-out rate declined from 6.8 percent inoutcomes. 1994 to 2.8 percent in 2000. Repetition rate

also declined from 16.9 percent in 1994 to9.7 percent in 2000.

B.3. Improve quality of teaching staff Last PSR did not indicate development The number of qualified teachers increasedoutcomes. from 140 in 1994 to 368 in 2001. However,

the proportion of qualified teachers declinedfrom 90 percent In 1994 to 76 percent in2000.

B.4. Increase the girs' enrollment rates Last PSR did not indicate development The girls enrollment in public EPU increasedoutcomes. from 1,271 In 1994 to 4,301 in 2001 and the

share of girls enrollment also increased from25.8 percent in 1994 to 26.4 percent in 2001.

B.6. Increase student/teacher ratio Last PSR did not indicate development The ratio slightly increased from 25 in 1994outcomes. to 26 in 2000. The student/qualified teacher

ratio also increased from 32 in 1994 to 36 in2000.

A: Eduardo Mondlane University (expand the quantity and improve the quality of university graduates)

B: Pre-University Education (enhance the quality of pre-university education)Output Indicators:

fl h ; Indlcator/Matrix . Projected In last PSR Actual/Latest Estimate

A.1. Expand students access to textbooks 4,350 titles of books were Imported by the On average 7 to 8 books has been providedand study materials (pmrvide at least 5 books project. Local production of textbooks to each student.to each student), and increase local textbook commenced and 30 original books wereproduction (complete 124 texts) ed,ted by the UEM staff and published a

series of study manuals.A.2. Expand computerization of UEM 60 computers, printers, software, and Computer training was expanded as adepartment supporting equipment was acquired and requirement courses In all university

computer training was expanded as a departments.requirement courses in all university

- 22 -

department.A.3. Establish linkage agreements Two twining arrangements with intemational Twinning arrangements were partially(economics, engineering) academic Institutions were achieved: (i) the achieved and the arrangement of Economic

Faculty of Economics was linked to Faculty has an impact on the students (seeUniversidade de Roma Tor Vergata for a details on 4.2)period of 3 years; and (ii) the Faculty ofEngineering was linked with Instituto SuperiorTecnico de Usboa for 15 months.

A.4. Increase housing stocks for staff The project constructed 92 on-campus Same as the last PSRretenUon apartment, renovated 108 on-campus

apartments, and rehabilitated 100 off-campusapartments.

A.5. Ensure the development of the 128 fellowships were granted during the Same as the last PSRMozambican academic and administrative project: 41 doctoral program; 51 Mastersstaff (complete 3 doctoral and 35 Masters degrees; 24 Licenciatura (honors degree);degrees and staff retumed) and 12 Bachelor's degrees.A. 6. Strengthen management and 1,883 participants attended over 24 different Same as the last PSRaccountability courses (e.g., project management,

management of data information, andprocurement courses).

A. 7. Expand students' residences Accommodation for a total of 717 students Same as the last PSRwas rehabilitated: out of which, 180 were newbed spaces.

A.8. Establish effective maintenance Last PSR did not indicate it. No budget was allocated for the maintenanceprogram (GIU functioning; maintenancetraining; budget increase from 0.5% to 2.0%)B.1. Develop new curriculum and A review of the existing examination system Same as the last PSRexamination system was conducted resulting in the creation of

three broad categories of studentspecializations: arts; sciences; and technicalcourses.

B.2. Provide books/Leaming materials and Physics labs were equipped in 6 EPU 8,140 textbooks and 130 encydopedia wereteaching kits schools and usage training for teachers was purchased and delivered to EPU school

conducted. Books were provided in 12 EPU librariesschools but books utlization was poor inmost schools.

B.3. Provide training to teaching and 25 school directors and teachers went for a Same as the last PSRadministrabve staff three months training in Portugal. Several

staff members benefited from Englishlanguage courses in Zimbabwe and otherswent for distance leaming seminars inBotswana.

B.4. Rehabilitaton, equipping and physical 6 EPUs was completed. Same as the last PSRexpansion of EPUsB.5. Increase dormitories and teachers One existing dormitory was rehabIlitated and Same as the last PSRhouses 4 dormitories were constructed. 43 teacher

houses were constructed.B.6. Build management and administraUve General regulation for school administration Same as the last PSRcapacity was produced and disseminated; however,

materials for financial management were notdone. 25 NDSE staff members and EPUadministrators were sent to Portugal fortraining in planning, school administration,education technology.

B.7. Support EPU's decentralized activitiesB.8. Increase giris' particpation; % 804 scholarships were provided to female 1158 scholarships were provided to femalescholarships offered. students student.

End of projectA: Eduardo Mondlane University (expand the quantity and improve the quality of university graduates)

- 23 -

B: Pre-University Education (enhance the quality of pre-university education)

-24 -

Annex 2. Project Costs and Financing

Project Cost by Component (in US$ million equivalent)Appraisal ActuaULatest Percentage ofEstimate Estimate Appraisal

Project Cost By Component US$ million US$ million

A.l. Educational Quality Improvement 5.26 5.58 106A.2. Staff Housing 6.54 7.73 118A.3. Staff Development 3.60 4.82 134A.4. Management Development 2.20 2.35 107A.5. Student Residence 3.89 4.62 119A.6. Building Rehabilitation 8.83 10.68 121B.l. Education Quality Improvement 3.36 1.17 35B.2. Facilities Upgrading 12.49 14.12 113B.3. Management Development 1.42 0.81 57B.4. Female Education 0.85 0.28 33

Total Baseline Cost 48.44 52.16Physical Contingencies 4.64Price Contingencies 7.20 2.00

Total Project Costs 60.28Total Financing Required 60.28 54.16 __ _ _

A: Eduardo Mondlane University (expand the quantity and improve the quality of university graduates)B: Pre-University Education (enhance the quality of pre-university education)

(i) US $2 million is listed under price contingencies as loss through teh depreciation of the SDR; (ii) Not allcounterpart funding and beneficiary contributions are included, thus actual expenditure are underestimated.

Project Costs by Procurement Arrangements (Appraisal Estimate) (US$ million equivalent)

. .~ Procurement Method'Expenditure Category ICB NC N.B.F. Total Cost

1. Works 26.70 1.20 0.00 0.00 27.90

(23.90) (1.10) (0.00) (0.00) (25.00)2. Goods 4.00 0.00 1.40 0.00 5.40

(3.80) (0.00) (1.30) (0.00) (5.10)3. Services 0.00 0.00 12.50 0.00 12.50(Consultant Services) (0.00) (0.00) (9.90) (0.00) (9.90)4. Training 0.00 0.00 7.80 0.00 7.80

(0.00) (0.00) (7.80) (0.00) (7.80)5. Incremental Operating 0.00 0.00 5.90 0.00 5.90Costs (0.00) (0.00) (0.00) (0.00) (0.00)6. Miscellaneous 0.00 0.00 0.80 0.00 0.80

(0.00) (0.00) (0.80) (0.00) (0.80)Total 30.70 1.20 28.40 0.00 60.30

(27.70) (1.10) (19.80) (0.00) (48.60)

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Project Costs by Procurement Arrangements (Actual/Latest Estimate) (US$ million equivalent)

Expenditure ,at.go.r Procurement MethodExpenditure C:ategory ICB NCB Other' N.B.F. Total Cost

1. Works 9.45 0.00 0.06 0.00 9.51(8.46) (0.00) (0.05) (0.00) (8.51)

2. Goods 15.24 0.00 4.12 0.00 19.36(13.64) (0.00) (3.69) (0.00) (17.33)

3. Services 3.81 0.93 5.55 0.00 10.29(Consultant Services) (3.41) (0.85) (4.97) (0.00) (9.23)4. Training 0.00 0.00 8.67 0.00 8.67

(0.00) (0.00) (8.67) (0.00) (8.67)5. Incremental Operating 0.00 0.00 5.90 0.00 5.90Costs (0.00) (0.00) (0.00) (0.00) (0.00)6. Miscellaneous 0.00 0.00 0.30 0.00 0.30

(0.00) (0.00) (0.30) (0.00) (0.30)Total 28.50 0.93 24.60 0.00 54.03

(25.51) (0.85) (17.68) (0.00) (44.04)Miscellaneous includes PPF.

"Figures in parenthesis are the amounts to be financed by the Bank Loan. All costs include contingencies.21Includes civil works and goods to be procured through national shopping, consulting services, services of contracted staff

of the project management office, training, technical assistance services, and incremental operating costs related to (i)managing the project, and (ii) re-lending project funds to local govemment units.

Project Financing by Component (in US$ million equivalent)Percentage of Appraisal

Component - Appraisal Estimate ActuallLatest'Estimate

Bank Govt. CoF. Bank Go,,| CoF.. Bank Govt. CoF.

UEM (A)A.1. Civil Works 10.50 2.60 0.00 8.63 1.29 0.00 82.2 49.6 0.0A.2. Technical Assistance, 5.60 0.00 0.00 6.79 0.00 0.00 121.3 0.0 0.0Studies & AuditsExpendituresA.3. Vehicles, Equipment, 1.30 0.00 0.00 3.29 0.00 0.00 253.1 0.0 0.0Supplies and MaterialsExpendituresA.4. University Book Fund 0.90 0.00 0.00 0.88 0.00 0.00 97.8 0.0 0.0ExpendituresA.5. Training Expenditures 4.50 0.00 0.00 8.04 0.00 0.00 178.7 0.0 0.0EPU (B) 0.00B.I. Civil Works 6.70 1.70 0.00 8.67 2.17 0.00 129.4 127.6 0.0B.2. Technical Assistance, 3.80 0.00 0.00 2.50 0.00 0.00 65.8 0.0 0.0Studies & AuditsExpendituresB3. Vehicles, Equipment, 2.00 0.00 0.00 4.56 0.53 0.00 228.0 0.0 0.0Supplies and MaterialsExpendituresB.4. Training Expenditure 2.50 0.00 0.00 0.65 0.00 0.00 26.0 0.0 0.0

- 26 -

Refunding of Project 0.80 0.00 0.00 0.22 0.00 0.00 27.5 0.0 0.0Preparation Advance

Unallocated 9.50 0.00 0.00 0.00 0.00 0.00 0.0 0.0 0.0Total 48.10 4.30 0.00 44.23 3.99 0.00 92.0 92.8 0.0

- 27 -

Annex 3. Economic Costs and Benefits

No attempt was made at appraisal to estimate n Net Present Value (NPV) or an economic rate of return,and therefore there is no baseline. The objectivies of the ICR mission did not include attempting to applyNPV/rate-of-retum methodology to a project of theis type, focusing mainly on quality improvement.

- 28 -

Annex 4. Bank Inputs

(a) Missions:Stage of Project Cycle No. of Persons and Specialty Performance Rating

(e.g. 2 Economists, 1 FMS, etc.) Implementation DevelopmentMonth/Year Count Specialty Progress Objective

Identification/PreparationApril/ May, 1991 13 SEC, EC, two HES, two SES,

two PSRS; three ETS; two PAS(6 of them are WB consultantsand 4 are from SIDA)

September, 1991 5 SPO, EC, ED, HES, PASFebruary/ March, I SCES1992

Appraisal/NegotiationMarch/ April, 12 SPO, EC, COU, ED, two1992 HES, SEP. LA, LE, LS,

PAS, AR

July, 1992 8 CO, SPO, SEC, EC, HES, COU,DO, SCES

SupervisionJune/July, 1993 6 SPO, EC, COU, HES, FMS,(Project launch) LS,March, 1994 1 ETC S S

May, 1995 3 ETS, HES, AR S SDecember, 1995 1 ETS U S

February/ March, I ETS U S1996November/ 5 SEC, SES, ETS, AR, ES U UDecember, 1996(Mid-TermReview)September, 1997 3 SES, AR, ES S SFebruary, 1998 2 SES, AR S SOctober/ 2 SES, AR S SNovember, 1998April/May, 1999 2 PES, AR S SSeptember/ 4 EE, EC, AR, DO S SOctober, 1999May/ June, 2000 4 EE, SEC, AR, ES S SMarch, 2001 4 SEC, GS, DA, AR S S

- 29 -

ICRDecember, 2001 2 EE, SEC

Specializations:SPO: Sr. Program Officer; EC: Economist; Educator: ED; HES: Higher Education Specialist; COU: Counsel; PAS:Public Administration Specialist; SCES: Secondary Education Specialist; PSRS: Public Sector Reform Specialist;PAS: Public Administration Specialist; LA: Lawyer; .LS: Legal Specialist; AR: Architect; ETS: Education TrainingSpecialist; SES: Senior Education Specialist; ETS: Education Training Specialist; ES: Education Specialist; TS:Textbook Specialist; EE: Education Economist; EP: Education Planner; MS: Management Specislist; TTS:Teacher Training Specialist; PES: Principal Education Specialist; 00: Operation Officer, DO: DisbursementOfficer; SEC: Senior Economist; GS: Gender Specialist; DA: Disbursement Analyst; DO Disbursement Officer;CO: Country Officer; PO: Program Officer

(b) Staff:

Stage of Project Cycle Actual/Latest EstimateNo. Staff weeks US$ (000)

Identification/Preparation 37.2 91.2Appraisal/Negotiation 68.0 167.4Supervision 204.2 642.3ICR 10.0 25.0Total 319.4 925.9

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Annex 5. Ratings for Achievement of Objectives/Outputs of Components(H=High, SU=Substantial, M=Modest, N=Negligible, NA=Not Applicable)

RatingOMacro policies O H OSUOM O N * NAOSector Policies OH *SUOM ON O NAF Physical O H O SU * M O N O NA? Financial O H OSU*M O N O NA

Z Institutional Development O H * SU O M 0 N 0 NAZ Environmental O H OSUOM O N * NA

SocialF Poverty Reduction OH OSU*M ON O NAI Gender OH OSU *M O N O NA

O Other (Please specify) O H OSUOM O N * NAPrivate sector development 0 H O SU O M 0 N * NA

O Public sector management O H SU O M 0 N 0 NAO Other (Please specify) O H OSUOM O N * NA

- 31 -

Annex 6. Ratings of Bank and Borrower Performance

(HS=Highly Satisfactory, S=Satisfactory, U=Unsatisfactory, HU=Highly Unsatisfactory)

61 Bank performance Rating

F Lending OHS*S Oiu OHUF Supervision OHS OS O U O HUF Overall OHS OS O u O HU

62 Borrowerperformance Rating

F Preparation OHS OS O u O HUZ Government implementation performance O HS OS 0 U 0 HU0 Implementation agency performance OHS OS Ou O HUF Overall OHS OS OU O HU

- 32 -

Annex 7. List of Supporting Documents

Aide-memoire. World Bank, 1993-2001.

Annual Report 1996-1997. Eduardo Mondlane University, March 1998

Annual Report: 1995-1996. Eduardo Mondlane University, November 1996

Annual Report 1994-1995. Eduardo Mondlane University, March 1996

Annual Report: 1993-1994. Eduardo Mondlane University, 1991

Annual Report 1992-1993. Eduardo Mondlane University, October 1991

Annual Report: 1991-1992. Eduardo Mondlane University, October 1991

Capacity Building Project UEM Component: Evaluation of Civil Works. by Pieter Smoor (ArchitectConsultant), 2001

Capacity Building Project EPU Component: Evaluation of Civil Works. by Pieter Smoor (ArchitectConsultant), 2001.

Eduardo Mondlane University: Review of Governance, Planning and Management. CommonwealthSecretariat, May 1992.

Present and Perspectives. Eduardo Mondlane University, 1991

Project Appraisal Report: Capacity Building: Human Resources Development Project. World Bank,October 1992.

Project Evaluation Report (Component A). Eduardo Mondlane University, 2001

Project Evaluation Report (Component B). Ministry of Education, 2002

Project Status Reports. World Bank, 1993-2001.

- 33 -

Additional Annex 8. The Borrower's Evaluation Report: Eduardo Mondlane University

-34 -

A<)UNIVERSIDADE FPUARP.0 MQNDLA,Gabinete do Reitor'

SCANNED FILE COPY. ~ cesgIon No. Box NO.

Dear Sir N

Soren Nellemann . =Task ManagerWorld Bank -. f-;ep|CWashington-USA Ref RT/158/01 (05/07/2001)

Subject: UEM-ICR of the Capacity Building Project

Dear Soren Nellemann,

In the terms of the Credit Agreement 2436 as after the implementation of theproject activities, during periodfrom January 1, 1994 to June 30, 2001, theUEMprepared an evaluation report to be included in the formal documentof the Implementation Completion Report (ICR).

After the final project supervision mission, held during the periodcomprehendedfrom 2 0th to 3 0 'h, of March of 2001, it was handover to theTask Team Leader, Dr. Noel Kulemeka, one project Implementation Reportuntil June 30, 2001, in an effort to speed the preparation of ICR, printed inApril 3, 2001.

The present report has been continuously improved and will be madeavailable before the end of July. It is of paramount importance that thecurrent evaluation report, be crossed with the final Implementation Report,that presents more detailed elements of the project implementation.

Find attached to this letter the evaluation report.

The Rector of UEM

1a

REPjPBLICA DE MOCAMBIQUEUNIVERSIDADE EDUARDO MONDLANE

IMPLEMENTATION COMPLETION REPORT

CAPACITY BUILDING PROJECT(CREDIT 2436)

INTRODUCTION

This document comprises the Implementation Completion Report (ICR-UEM) of the Capacity Building Project Credit 2436) approved in January29, 1993. The project came into effect on the date of January 1, 1994 andthe respective closing date on June 30, 2001. The project started with atotal amount of SDR 34.100.000, being the part allocated to the UEM inSDR 19.650.000. (58Y), corresponding approximately USD 28.360.800,according to an average medium exchange rate mechanism of ] SDR equalto 1,44 USD.

The ICR was prepared taking into account the following elements:

1. THE EXECUTION OF ACTIVITIES2. THE SCOPE OF THE OBJECTIVES3. SUSTAINABILITY AND FUTURE OPERATIONS4. DRAWING LESSONS FOR THE FUTURE

2

1. THE EXECUTION OFACTIVITIES

The project activities, in general, were realized satisfactorily, there wereflexibility in the inclusion of some activities, which were not previouslyplanned to be executed by the project.

Until June 30, 2001, the project closing date, the project registered afinancial execution of 100,26% ouit ofSDR 19.695.000, the amount allocatedto the UEM The additional execution of 0,26% represents the disbursementof USD 7.590,54, corresponding to SDR 6.500, drawn from the globalamount of SDR 661.000 requested during the final project supervisionmission, to be reallocated from the "part B (MJNED)" to the "part A(UEM) " of the project, for the financing of some attivities which had beenpreviously cancelled, because of the exhaustion offunds available.

The global amount SDR 661.000, were already fully committed up to June30, 2001, with some disbursement to be executed during the grace period.comprehendedfrom July 1, 2001 to October 31, 2001.

2. THE SCOPE OF THE OBJECTIVES

In overall the project objectives were attained and having contributedfor. i) improvement of the quality of the teaching and learning process, ii)improvement of the accommodation conditions for the teaching staff and theadministrative staff; iii) improvement of the academic qualifications of thepersonnel; iv) improvement of the accommodation conditions for thestudents; v) rehabilitation of the partial physical plant of the UEM; vi)beginning of the strengthening of the financial management system, and vii)for the access to internet.

3. SUSTAINABILITYAND FUTURE OPERATIONS

The project activities are sustainable and will be continued in the scopeof UEMStrategic Plan (PEUEM), with emphasis to:

i) the administrative efficiency;ii) the excellence and quality;iii) development andfinancial sustainability;iv) development of the physical plant;v) stabilization and Human Resources Development;vi) increasing the number of enrolments;vii) improvement of the social conditidns;viii) assure/improve the equity of gender;ix) development of institutional twinning arrangement;x) stimulation of the academic environment;xi) divulge the image of the UEM;

The activities above indicated will be funded by the World Bank, theGovernment of Mozambique and by other donors.

4. DRA WING LESSONS FOR THE FUTURE

a) in the extent of the project management

The project, initiated the implementation of activities without any"Project Implementation Unit" (PIU), what between other issues, caused agreat delay determined in the implementation of the project activities (in thefirst year with 0,4% level of disbarsement and an aggregate of 4% in thefirst 2 years).

As a lesson for the future, it is suggested that the PIU must stablishedbefore the initiation of implementation activities by the project. preferablvduring the phase of 'appraisal', in an effort to assure:

4

i) that the implementation of new project doesn't initiatedfromZero stage, taking into consideration the experienceaccumUlated from the current Implementation, making surethat there is a continuity;

ii) improve better execution of the activities of the next project;

iii) better articulation between the phase of project preparationand the phase for its implementation;

Therefore. it is also recommended, that the PIU-Central. including GIU-Gabinete de Instalacjes Universitdrias, be maintained as the next units forthe implementation of the forthcoming project. with some correctivemechanism being introduced, in a way to safeguard the best efficiency in itsfunctionality.

b) The scope of the Procurement Function

The procurement of (goods,works and services ) observes a very longcycle, this issue doesn't contribute effectively for the best execution of theproject activities. It is suggested as a lesson for the future, that theprocurement function (analysis of the bidding document, analysis of theevaluation report and attribution of the respective No Objections), bedecentralized in order to be handled by the World Bank Resident Mission,so- that the procurement function becomes more efficient, streamlining theimplementation of the planned activities.

In an effort to streamline the procurement function, it is suggested that theprocess of awarding of contracts opens a room for an equitv both qualitvand price, not only given emphasis to the lowest price as it is the procedurepresently, regarding the quality for the second place, in the perspective toavoid the experience gatheredfrom the Faculty of Science in the first phaseof construction preventing being repeated. Although this activity had beenfinanced by other credit not by 2436, it very important to refer this lesson,because it had occurred during the implementation of the 2436 credit.

c) The disbursments concerned to training

In the case of UEM, given to the reason that the Post-Graduationtraining abroad will continue, there is a need to lay down a set of rules thatwill allow the equitable andfair attribution of scholarships by the differentorgans of the UEM, with inclusion of other critical aspects.

The World Bank disbursement system must be revised, in an effort toattend and assist efficiently the needs of the credit beneficiary.(Disbursement during the course .of the project execution for funding thetraining needs that will continue after the period of the closure of theproject).

d) Other aspects

d.1. In the component of the rehabilitation of the physical plant:

Taking into account that the component for the rehabilitation, it is new inactivities being financed by the World Bank, in the wake of the difficultiesexperimented in the course of the credit 2436 implementation, given to thefact that the component for rehabilitation will continue in the next credit, itis suggested be executed through an autonomous flexible function, to beconsidered and approved for execution in the framework that would allowmore dynamic implementation procedures.

d.2. In the component off inancial management

Bearing in mind that, the original currency of the credit were SDR and,when executed are converted automatically into USD, according to thecalculations previously done by the PIU, it is estimated that the depreciationof SDR against to the USD, had caused a lost of around USD 1.200. 000 inthe credit 2436.

In a nut shell. it is suggested that in the implementation of the new project.the depreciation of gD? through the exchange rate mechanism befollowed, in way that funds of the credit being maximized in favour of thebeneficiary.

6

Final Observation-

As was referred in the above cover letter, the UEM prepared the finalimplementation project report, that contains more detailed information,having only to be considered as a source of reference complemented to theICR.

7~~~~~~~~~~~~~~~~~~~~~~~~~~~

Additional Annex 9. The Borrower's Evaluation Report: Ministry of Education

-42 -

REPUBLIC OF MOZAMBIQUE ZMINISTRY OF EDUCATION 5 m

IMPLEMETANTION COMPLETION REPORT

CAPACITY BUILDING PROJECT 0(CREDIT 2436-MOZ) , B

1. SUMMARY

This document represents the Implementation Completion Report (ICR), for part B - UpperSecondary Education Improvement component of the Capacity Building Project (CBP) inMozambique. The Development Credit Agreement between the Republic of Mozambique and theInternational Development Association was signed on March 28, 1991, and was declared effective on

. The Credit was in the amount of SRD 34,1 million to be used in the implementation ofpart A - University Stabilization (aprox. US$ 30.3 million), and part B - Upper SecondaryEducation Improvement. (approx. US$ 18.1 million).The final closing date was June 31, 2001.

2. INTRODUCTION

The present ICR covers only part B (MINED) of the credit an was prepared by a team comprising of:Mr. Zefanias Muhate (MINED Permanent Secretary, MINED), Mr. Herminio Malate (GeneralDirector, GEPE/MINED), Mr. Daniel Bomba (MINED senior official), Mr. Oaldo Tarmamade (Head,Construction Depart., GEPE/MINED), Mr. Antonio Nhampossa (Head Finance Department,GEPE/MINED), and, Mr. Baiane ( MINED/NDSE senior official), Mr. Cossa (MINED/NDSE seniorofficial). Valuable inputs were also received from Mr. Pieter Smoor, consultant and from the WorldBank.

3.THE REPORT

With the present report the Borrower intends to: (a) assess the project outcomes as compared to thestated project goals; (b) evaluate the performance of the Borrower and IDA during project preparationand implementation; and (c) draw lessons which could be used to improve the implementation of futureeducation projects.

Other issues to be discussed are the achievement of stated Project Objectives, the implementationRecord, and the Project sustainability.

4. PROJECT OBJECTIVES

The broad project objectives, as spelt out in the Staff Appraisal Report (SAR), are to:

(a) expand the quantity and improve the quality of university graduates, by stabilizing andmotivating the Mozambican teaching faculty, enriching the learning environment,upgrading and maintaining the UEM physical facilities, and improving organization andmanagement practices; and

(b) enhance significantly the quality of upper secondary education, by taking importantpositive steps in the areas of teacher training, provision of books and otherteaching/learning materials, school management and community involvement, andschoolfacilities rehabilitation.

To facilitate implementation, the main project objectives to were grouped into the followingcomponents:

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(a) University Stabilizationz: upgrading and construction of faculty apartments; staffdevelopment; institutional linkages to bolster key departments; supply of librarymaterials, textbooks, computers and other teaching materials; enhanced management andaccountability; expansion of students dormitories; and general upgrading of universityphysicalfacilities and development of a maintenance program.

(b) Upper Secondary Education Improvement: accelerated teacher training; curriculumreform; supply of textbooks and teaching aids, school management training;establishment of a scholarship fund for girls; rehabilitation of six existing pre-universitysecondary schools (EPUs); construction of staff housing and students residences.

The Upper Secondary Education Improvement component, was to be implemented by MINED andconsists of the following sub-components:

(i) Improvements in the quality of vre-universitv education by increasing the supplyof teachers, supporting the development of a new curricullum and examinationsystem; increasing the availability of textbooks and other learning materials;providing teachers with pedagogical support in the form of teaching materials; andsupervisory visit; strengthening the strategic planing capacity of the NDSE; andimprovements in the system of in-service teacher training. (US$ 3.4 million)

(ii) Stabilizing the EPU network by rehabilitating the existing schools, andconstructing dormitories and staff housing.(US$ 12.5 million)

(iii) Building management cayacity of the EPUs and the National Directorate ofSecondary Education, and strengthening school maintenance capacity by in-servicetraining for school directors and administrators in planing and financial management;decentralizing the materials budget and maintenance activities; strengthening projectmanagement; and introducing efficient information management systems at schoollevel and between MINED and individual schools (US$ 1.4 million).

(iv) Raising girls' enrollment rates at the EPU's, by providing scholarships for girls,supporting communities awareness programs, and increasing the number of femaleteachers (US$ 680,000)

5. ASSESSMENT OF PROJECT OUTCOMES

The above indicated project objectives were to be achieved through stabilization of the existing EPUnetwork; improvements in the quality of pre-university education nation-wide; and strengthening ofmanagement capacity and maintenance capabilities at the school level.

5.1 -Ouality of ore-university education sub-component5.1.1 Original Project Outcomes

5.1.2 Actual Project outcomes

Development of new curriculumAs a result of seminars and studies carried out under the project, a new curriculum frame for the uppersecondary education was designed in 1994, esfablishing three fields of specialization, A, B and C,according to the students prespective for higher education. Implementation of the new curricular framestarted in 1995. A seminar for the review of the country 's curriculum for upper secondary educationand review its exam system was conducted in June 1996, resulting in the introduction of a new subjects- philosophy - and the split of the then single subject "Physics and chemistry" into two individualsubjects.

Review of exam systemAlso as a result of studies and seminars realized under the project, a new exam system was designedand, its implementation started in1996.

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Staff development25 upper secondary school directors and pedagogic directors benefited from training courses inPortugal and a number of technicians at NDSE attended English language courses and seminars inZimbabwe and Botswana.Regarding supper secondary education teachers' training, eleven (11) national and three (3) regionalseminars on specific subjects teaching methodology were conducted.Also out of project proceeds, technicians from NDSE carried out several pedagogic supervision visitsto all upper secondary education schools from 1994 till 1999.

Equipment and suppliesfor the NDSE8140 textbooks and 130 encyclopedia were purchasedfor school libraries as well as, various materialsand supplies. Didatic materials for sports, physical education and, audio vision materials were alsopurchased for Upper secondary schools. 6 punching and binding machines, 6 paper cutters, 18projectors (and accessories), 13 photocopying machines, 8 multi-copying machines and, 24 typingmachines, 18 computers, 12 printers were also purchasedfor EPU schools.Laboratory equipment for chemistry and didatic material fordrawing was purchased for 6 uppersecondary schools. Technical specifications for laboratory materials fpr chemistry and biology wereprepapered.

5.2- Stabilizine the EPU network sub-component5.2.1 Original Proiect OutcomesThe stabilization of the EPU network was to be achieved through the rehabilitation of 6 (six) existingEPU's and construction of student dormitories and staff houses as per the following schedule:

Table 1- List of EPU schools to be rehabilitated

Location EPU School Dormitories Staff housesMaputo Josina Machel Not envisaged Not envisagedMaputo Francisco Manyanga Rehabilitation of I dorm. Not envisagedXai-Xai Xai-Xai New dorm 200 students 07 2-bdr unitsBeira Samora Machel New dorm. 300 students 10 2-bdr unitsQuelimane 25 de Setembro New dorm. 200 students 10 2-bdr unitsNampula 1° de Maio New dorm. 300 students 06 2-bdr units

The project allowed for possible construction of a new EPU school in Xai-Xai (see schedule ofphysical facilities in Annex Il-I 1 of the SAR), should it be determined that security was not adequatein the existing school site. The SAR indicated that the scope of the rehabilitation works was to belimited to the existing budget, meaning that not all rehabilitation needs would necessarily be met,depending on the results of the final surveys and corresponding cost estimates.The project further provided for new furniture and equipment for all new facilities and, for 50%replacement with new furniture for all rehabilitation areas, including laboratories.

5.2.2 Modification of Proiect Activities

In the course of project implementation some mddification were made to the project activitiesidentified at appraisal. For instance,* the rehabilitation of Josina Machel EPU school was omitted from the project activities because it

had already be carried out with proceeds from the Education 1I project; this included the supply ofnew furniture and reconditioning of damaged furniture;

* the rehabilitation of the existing EPU facilities in Xai-Xai was abandoned in favor of theconstruction of a new EPU school at a better and more central location. The existing EPUfacilities would need extensive reconstruction and expansion and, were located far away from thetown center.

* The construction of students dormitories at Beira and Nampula were also abandoned since theremaining funds after commitment with the rehabilitation contracts for Francisco Manyanga,Samora Machel, 25 de Setembro and, Nampula EPU's as well as the contracts for construction of

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new EPU school and students dormitories at Xai-Xai and, new students dormitories at Quelimanewere not enough to cover the construction (and supply of furniture) of even one of the above twodormitories.

* Furniture and laboratory benches, including provision of water, electricity and gas networks, werepurchased for the Basic Seiences Faculty at UEM, built under the Education II project.

* And, finally, part of the balance of the project proceeds were, during the winding up phase of theproject, used to buy furniture for _ secondary schools countrywide.

5.2.3 Actual Proiect Outcomes

The construction and rehabilitation works actually executed under the project, including associatedconsultants services and related furniture and equipment, are listed in table 2 bellow.

Table 2 List of Civil Works and Related activities

ACTIVITIES COST CONTRACTORCONSULTANT SERVICESLot MMX-Design & supervision 1,174,850 SBT JUUL/PROJECTAEPU Maputo, Xai-XaiDesign of Prototype DormitoriesLot BQN-Design & supervision 542,100 EGC/WHELANEPU Beira, Nampula, QuelimaneSUB-TOTAL 1,716,950STAFF HOUSINGConstruction of 43 teacher houses 1,943,432 OGA

SUB-TOTAL 1,943,432PRE-UNIVERSITY SCHOOLS_EPU Francisco Manyanga-Maputo 711,275 CONSENGRhab iiaton of scooEpu-Samora Machel-Beira 474,468 OGARehabilitation of schoolEPU 25 de Setembro-Quelimane 507,558 CONSENGRehabilitation of schoolEPU 25 de Setembro-Quelimane 1,891,350 OGAConstruction of New DormitoryEPU Secondary School-Nampula 76,048 FASE, SARLRehabilitation of school (paid on I" bid)EPU Secondary School-Nampula 426,046 OGARehabilitation of School (2n bid)EPU Sec. School & Dormitory-Xai-Xai 4,731,946 OPCA

SUB-TOTAL 8,818,691FURNITUREEPU F. Manyanga-Maputo (school) 41,956 PANDORAEPU Samora Machel-Beira (school)/Lot-l 48,789 MOBILADORA CENTRALEPU Samora Machel-Beira (school)/Lot-2 129,715 L. DUARTE SANTOSEPU 25 de Setembro-Quelimane (school)EPU 25 de Setembro-Quelimane (dormit.) 68,957 MECANO-DIESELEPU Secondary School-Nampula (school) 125,480 SOMANOLEPU Sec. School-Xai-Xai (school) 98,586 COMPROMETEPU Sec. School-Xai-Xai (dormitory) 59,508 ORGANIZACOES SIDATUEM Basic Sciences Faculty 750,000 FALKE & HENRIQUES

SUB-TOTAL 1,322,991EQUIPMENTEPU-Physics Laboratories 146,812 SHERWOOD EXPORTSEPU-Xai-Xai dormitory 45,349 GTSEPU-Quelimane dormitory 54,231 GTSEPU-Xai-Xai computer equipment 43,299 STENAKSUEM-Basic Sciences Faculty 50,998 TECNEL

SUB-TOTAL 340,689

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TOTAL | 12,425,803 l

The above table shows that all six EPU schools proposed for rehabilitation or construction fromgrassroots under the project, were in fact or rehabilitated or built, although, one school - Josina MachelEPU school, in Maputo - was omitted from the project because it had already been covered under theEducation 11 Project. The same cannot be said for construction/rehabilitation of dormitories, for onlytwo (2)of the proposed five (5) dormitories were built. The construction of other three dormitories hadto be abandoned due to price overruns.

The reason why the project allocation for construction/rehabilitation of student dormitories was notenough to cover all five proposed dormitories was the high standard of the adopted design. A moremodest design would cost less and still meet the minimum comfort and functionality requirementsgenerally accepted for secondary schools student dormitories in Mozambique. The same is true for thedesign of the Xai-Xai EPU secondary school. A better understanding of local climate and localconstruction practice, would have helped the designer to use a more appropriate and less expensivedesign. It is also obvious that the designer did not take due consideration of the budgetary limits inwhich he had to encase his design.Failure by GEPE to spot the design shortfalls, may be attributed to limited engineering /architecturalcapacity for design review, inexperience of GEPE young professionals in supervision of such amultidisciplinary and complex design, and the pressure from the World Bank to have the designcompleted and construction works started in a relatively short time frame.

The quality of construction works can be considered good, though most construction contracts spannedlonger than the contractual deadlines. This may be due to unrealistic time spans stipulated by GEPE,and inefficient network of supply of construction materials.For the case of rehabilitation works, the quality may be rated as regular, since some problemsencountered before the rehabilitation, were not resolved by the rehabilitation exercise. This may beattributable to inexperience of the engaged consultants in designing efficient rebabilitation remedies, Itshould be mentioned that this was the firs large scale rehabilitation exercise ever undertaken in thecountry, by that time, after a period of more than twenty years of absence of buildingmaintenance/rehabilitation activities in the country.

5.3-Buildine management caDacitv of EPUs and the National Directorateof Secondary Education

A national meeting of the secondary school directors was held in Maputo, in October 1995 to discussschool management techniques and, problems encountered by school managers.25 school directors were, in 1997, trained in Portugal in the fields of school administration andmanagement

5.4-Raisine eirls' enrollment rates at the EPU's

A number of female upper secondary school students throughout the country, except for Maputo,benefited from scholarships (US$ 15 per student per month). The program started with 70 girls in 1994and ended in 2000 with 355 female students. The program could have reached more girls if it were notfor the bureaucratic problems faced during the implementation of the program, and also due to the lowgeographical coverage of the banking network in the country, which made it difficult or impossible tochannel the girls scholarships to them.

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