The World Bank Nigeria Partnership for Education Project (P143842) REPORT NO.: RES33914 RESTRUCTURING PAPER ON A PROPOSED PROJECT RESTRUCTURING OF NIGERIA PARTNERSHIP FOR EDUCATION PROJECT APPROVED ON MAY 8, 2015 TO FEDERAL REPUBLIC OF NIGERIA EDUCATION AFRICA Regional Vice President: Hafez M. H. Ghanem Country Director: Rachid Benmessaoud Senior Global Practice Director: Jaime Saavedra Chanduvi Practice Manager/Manager: Halil Dundar Task Team Leader: Olatunde Adetoyese Adekola, Aisha Garba Mohammed The World Bank Nigeria Partnership for Education Project (P143842) ABBREVIATIONS AND ACRONYMS BA Beneficiary Assessment ECD Early childhood development EGRA Early Grade Reading Assessment FM Financial Management FMOE Federal Ministry of Education IE Impact Evaluation LGA Local Government Area LGEA Local Government Education Authority M&E Monitoring and Evaluation MTR Mid-Term Review NCE National Certificate in Education NLA National Learning Assessment PDO Project Development Objective PIM Project Implementation Manual SBMC School-based Management Committee SDI Service Delivery Indicator SIG School Improvement Grant SMO Social Mobilization Officer SSO School Support Officer SUBEB State Universal Basic Education Board The World Bank Nigeria Partnership for Education Project (P143842) BASIC DATA Product Information Project ID Financing Instrument P143842 Investment Project Financing Original EA Category Current EA Category Partial Assessment (B) Partial Assessment (B) Approval Date Current Closing Date 08-May-2015 29-Jun-2019 Organizations Borrower Responsible Agency Universal Basic Education Commission,Federal Ministry Federal Republic of Nigeria of Education Project Development Objective (PDO) Original PDO The PDO is to improve access and quality of basic education in selected States, with particular attention to girls' participation. OPS_TABLE_PDO_CURRENTPDO Summary Status of Financing Net Ln/Cr/Tf Approval Signing Effectiveness Closing Commitment Disbursed Undisbursed TF-18918 08-May-2015 22-May-2015 02-Nov-2015 29-Jun-2019 100.00 81.11 18.89 Policy Waiver(s) Does this restructuring trigger the need for any policy waiver(s)? No The World Bank Nigeria Partnership for Education Project (P143842) I. PROJECT STATUS AND RATIONALE FOR RESTRUCTURING A. Project Status 1. The Nigeria Partnership for Education Project (NIPEP) is funded by a grant from the Global Partnership for Education (GPE) in the amount of USS$100 million. The Project was approved by the Africa Region RVP on May 8, 2015 and became effective approximately six months after, on November 2, 2015. Implementation commenced five months later in April 2016 after a delay by the Government in opening bank accounts. The original closing date of the Project is June 29, 2019. The project development objective (PDO) of NIPEP is “to improve access and quality of basic education in selected states, with particular attention to girls’ participation.” The project aims to achieve this through activities supported under three components: (1) Promoting School Effectiveness and Improved Learning Outcomes; (2) Increasing Access to Basic Education for Out-of-School Children with particular focus on Girls; and (3) Strengthening Planning and Management Systems including Learning Assessment and Capacity Development. The NIPEP targets its support to five states –Jigawa, Kaduna, Kano, Katsina and Sokoto. 2. Progress towards achievement of the PDO and Overall Implementation Progress are both rated Moderately Satisfactory. The project is on track towards achievement of the PDO with disbursement rate at 74 percent (after more than 3 years of project implementation). The project defined disbursement categories as grants and non-grants. The table below shows the disbursement status based on the disbursement categories in the Grant Agreement. Table 1: NIPEP Allocation by disbursement categories; grant and non-grant (US$ million) Original Allocation Disbursed Undisbursed Grant 63 53.20 9.808 Non-Grant 37 10 27 3. To date, financial management (FM) and procurement under the project have largely been satisfactory with issues identified addressed in a timely manner. Though there was some delay in establishing a Grievance Redress Mechanism (GRM) under the project, a GRM is now operational in each state and there has been adherence to safeguards requirements. There has also been progress on many of the project’s indicators. With regards to the primary school net enrollment rate (NER), the value is now at 46 percent (Nigerian Education Data Survey (NEDS) 2015 value) (lower than the end-of-project target of 52 percent); and gender parity index is now 72 percent (NEDS 2015 value) (against the end-of-project target of 76 percent). The next NEDS survey is ongoing and the results will be available in June 2019. The World Bank Nigeria Partnership for Education Project (P143842) 4. For those indicators for which the targets have not yet been achieved (by design or as a result of delays), progress has been made. With regards to achievement of the PDO-level indicator on EGRA achievement (in Hausa in primary grades 2 and 3; and reading in English in primary grade 3), a firm has been recruited to undertake this assessment which is expected to be completed in June 2019. With regards to the establishment and utility of the learning assessment system at the primary level (a PDO-level indicator), an independent consultant has been hired to generate standardized tests to assess reading students’ reading in Hausa and English for all schools in all NIPEP-targeted states. Information to measure progress on this indicator is expected to be available by June 30, 2019. To date, the project has reached 5,104,809 beneficiaries against the end-of-project target of 5,700,000 and 48.5 percent of these beneficiaries are female. It is still expected that the end-of project of 50 percent of the direct project beneficiaries being female is expected to be reached based on the Bank’s commitment to states. A detailed overview of progress on each indicator can be found in the Results Framework below and in Annex I. 5. The following provides an overview of achievements under each component. Component 1: Promoting School Effectiveness and Improved Learning Outcomes 6. The objective of this component is to improve the effectiveness of schools, and in so doing, encourage pupils to enroll and stay in school. It has three sub-components: (a) School improvement grants (SIGs) to primary schools; (b) SIGs to Pre-Primary Schools (c) Support to Teachers Professional Development. The status of key activities under each sub-component is described below: (a) School Improvement Grants to Primary Schools: This sub-component aims to provide all eligible primary schools in the five NIPEP-targeted states with a SIG through a decentralized mechanism for non-salary related expenditures to improve learning and teaching in schools. In round 1, 4,362 schools received a SIG. In rounds 2 and 3, a total of 4,784 and 6,075 new schools respectively were awarded primary schools grants. An average of 10 percent of the registered Integrated Islamiyya Schools that satisfy eligibility criteria for SIGs are also expected to benefit from NIPEP-supported SIGs. Significant progress has been made to date with grants provided to 15,221 primary schools. The end-of-project target of 16,220 schools having received SIGs is expected to be met by the current closing date. (b) School Improvement Grants to Pre-Primary Schools: This sub-component provides SIGs to schools with established pre-primary classrooms to support teaching and learning activities and procurement of materials and resources for pre-primary education. Pre-primary SIGs are channelled to school accounts and can be used for expenditures related to pre-primary education only. At appraisal, it was envisioned that approximately 11,000 schools will receive support through the pre-primary grant by the end of the project. To date, SIGs have been awarded to 10,626 pre-primary schools. In Round 1, 2,315 schools received grants – and received these in rounds 2 and 3. In rounds 2 and 3, a total of 3,266 and 5,045 new schools respectively were awarded pre-primary schools grants. The World Bank Nigeria Partnership for Education Project (P143842) (c) Support to Teachers’ Professional Development: This sub-component provides support to the cost of training and materials for state-led interventions to: develop the skills of primary teachers; and mentor teachers and head teachers in the core areas of reading, literacy and mathematics. The number of primary teachers, mentor teachers and head teachers expected to be trained in reading, literacy and mathematics under this sub component is 96,000. To date, 73,808 early grade teachers currently teaching pre-primary and primary grades 1 – 3 classes have benefitted from short- and/or long-term pre-primary/early childhood development (ECD) training. . Component 2: Increasing Access to Basic Education for Out-of-School Children with focus on Girls 7. The objective of this component is to expand access to basic education for female students and promote gender equality. In addition, relevant training will be provided to strengthen School-Based Management Committees (SBMCs). This component has three sub-components: (a) Girls’ Access to Primary Education; (b) Scholarships for Female Teachers; and (c) Community Mobilization and SBMC Training. The status of key activities under each sub-component is described below: (a) Girls’ Access to Primary Education: This sub-component aims to increase the demand for girls’ education through the provision of scholarships to households to encourage the enrolment of girls in lower primary schools. The scholarship program is designed to provide quarterly payments to the primary caregivers of the selected girls with the first disbursement at the beginning of the school year. The end-of-project target for this component is to support 174,000 girls through state specific scholarship schemes. Currently 299,629 girls have been awarded scholarships, significantly exceeding the end-of-project target. Government actions among some states such as provision of school materials to students, for instance in Kano, produced better results in ensuring more girls are enrolled in schools leading to an increase in the number of girls’ scholarships awarded. Further, the shift in the exchange rate (USD/Naira) meant that additional funding was available to provide more girls’ scholarships than planned at appraisal. Other factors driving increases in girls’ enrollment include the role incentives in motivating SBMC members to engage in enrollment drive campaigns and intensive community mobilization and sensitization of parents especially mothers to enroll girls in basic education. (b) Scholarships for Female Teachers: This sub-component has the objective of increasing the supply of qualified female teachers and is expected to promote gender equality in hiring of teachers in NIPEP-targeted states. Under this sub-component, 21,000 female teachers’ scholarships are to be awarded to enable them upgrade their qualifications to the NCE. Currently, 10,649 female teachers have been awarded scholarships to participate in NCE program to upgrade their qualification. (c) Community Mobilization and SBMC Training: In support of providing scholarships for female teachers (see sub-component 2b), capacity-building and operational support to Local Government Education Areas (LGEAs) and school-level stakeholders is being provided under this sub- component. Approximately 21,000 LGEAs and school-level stakeholders with specific focus on gender advisors, Social Mobilization Officers (SMOs), School Support Officers (SSOs), SBMCs, and The World Bank Nigeria Partnership for Education Project (P143842) school staff are expected to receive training in the areas of leadership and school management which will promote girls’ enrolment and retention and ensure that SIG-supported activities are designed and implemented with due regard for gender sensitivity. Only a few number of 8,635 members of SBMCs have received training as of mid–term of the project against the end-of-project target of 12,130 SBMC members. Component 3: Strengthening Planning and Management Systems including Learning Assessment and Capacity Development 8. The objective of this component is to ensure the effective coordination, monitoring and supervision of project activities, and the provision of technical support and capacity building through the provision of funds to support operating costs, and short and long-term consultancy services for state and federal governments. It has two sub-components as follows: (a) Management and Implementation Support: This sub-component provides resources for TA and capacity building to the Federal Ministry of Education (FMOE), and its implementing agencies, to fund key operational costs related to the management, monitoring and supervision of NIPEP activities, including procurement and FM. (b) Monitoring, Evaluation and Learning Assessment: This sub-component provides resources for M&E activities, and support activities to build the capacity of State Universal Basic Education Board (SUBEBs) and LGEAs for monitoring and evaluation (M&E), data analysis and the implementation of learning assessments. SUBEBs will support LGEA operational activities such as routine school visits and provide supportive supervision and monitoring. Interventions delivered under this sub-component will measure changes in the learning outcomes of project schools, including the production of early grade reading assessment (EGRA) surveys in 2017 and 2018, building on a baseline assessment undertaken in 2014. 9. The component funds interventions for TA to conduct and coordinate learning assessments through the annual measurement of student learning and achievement by supporting EGRA surveys, and the National Learning Assessment (NLA) process, third party monitoring and two impact evaluations (IEs) of NIPEP- supported interventions (on SIGs’ role in promoting and increasing enrolment and transition rates and use of a social behavior change campaign to increase enrollment and retention of girls in school). To date, there has been only limited progress on the establishing of NLA system and conducting of EGRA. A consultancy firm was recently recruited to conduct the primary learning assessment (EGRA) as a way of establishing a NLA system of which reading assessment (EGRA) is part of and put in place mechanism for administration of standardized test for learning at primary school level. The Bank has approved the work plan including timelines for the conduct of the EGRA. The third-party monitoring verification exercise of several of the project-supported activities was undertaken by external consultants and a final report was produced. The project planned to carry out similar third-party monitoring verification one more time before the project closes. All of the reports and studies including the Mid-term review (MTR)/progress reports (by state and consolidated report on all states), a Beneficiary Assessment (BA), and a project implementation manual (PIM_ Review and the Service Delivery Indicator (SDI) Survey were concluded and finalized. Progress has The World Bank Nigeria Partnership for Education Project (P143842) also been made on IEs including the conduct of separate baseline studies for the two IEs and the IE interventions/activities that commenced in November 2018. 10. Capacity-building/training has been provided in several key areas (M&E, fiduciary procedures, team building and gender sensitization). Progress in the area of project M&E observed has included the administration of the harmonized monitoring tools at the school and LGA levels. Further, the establishment of Education Management Information System (EMIS) process has commenced with the involvement of partners in the five states facilitating the timely production Annual School Census (ASC) data necessary for decision making in the sector. B. Rationale for restructuring 11. An MTR was held from October 3-13,2017 to review the Project’s progress to date to identify bottlenecks and necessary adjustments needed to be made to ensure the project achieves its PDO. The team also carried out discussions and consultations at both the federal and state levels before proposing areas of restructuring. It was determined during the MTR that there needed to be a better understanding of disbursement status by states, therefore, an M&E consultant was contracted by the Government to collect information on spending and document project achievements against targets set for each of the five participating states. 12. The MTR concluded that the PDO and the PDO-level indicators remain relevant. It was agreed, however, that some adjustments to project indicators would be useful in better capturing NIPEP’s progress and achievements to date and in further clarifying measures. Further, it was agreed that additional time would be needed to fully complete project activities and to ensure full achievement of the PDO. Proposed modifications were thoroughly discussed and agreed with the state and federal governments. The proposed restructuring would include: (a) an extension of the closing date of the Project; (b) increased support to specific activities; and (c) adjustments to the indicators (some formal changes, and other clarifications) in the results framework. 13. A 12-month extension of the current Project closing date is necessary in order make up for the time lost because of delays in project implementation. The delay in project implementation was a result of: (a) the low capacity of government to implement the project; and (b) delay in signing of subsidiary agreement. Although the project has made some strides in catching up with delays by overcoming implementation constraints during the years, some of the critical project-supported activities cannot be completed by the current, original closing date of June 30, 2019. Specifically, the extension would allow for completion of a number of NIPEP-supported activities including: (a) the design and establishment of an NLA system; and (b) an IE on the social norms campaign which commenced in August 2018 which will be completed by April 2020. With an extension of the project closing date, the IE would also be expanded to cover non-NIPEP funded schools in and around the vicinity of the NIPEP-funded schools. Finally, the additional time would allow completion of (c) the EGRA, learning assessment end line data collection, analysis, and will be completed in June 30, 2019. The World Bank Nigeria Partnership for Education Project (P143842) 14. The restructuring would introduce adjustments to some activities and inclusion of additional activities to reach more students/primary schools and conduct more research. These adjustments will include: training of more primary school teachers, mentor teachers and head teachers in the core areas of reading, literacy and mathematic would be made on the basis of implementation progress to date and different level of achievement across states. Further, with additional time and cost savings, additional activities including study on Quaranic schools, teachers and the roll out of the administration of the harmonized monitoring tools at the school and LGA levels would be supported. 15. The restructuring would also introduce changes to the RF which would: ensure the project can better capture progress in the implementation of project activities and progress towards achievement of the PDO; clarify and solidify some aspects related to the measurement of a number of indicators; and reflect implementation progress to date and additional time that would be provided with the proposed extension of the project closing date. See RF below and Annex I for details on each of these changes. II. DESCRIPTION OF PROPOSED CHANGES A. Proposed Changes 16. The proposed restructuring includes: (i) an extension of the project closing date by 12 months to June 30, 2020 to allow completion of key planned activities; (ii) adjustment of some activities initially planned under the project to take into account actual implementation to-date and additional time that would be provided were the project extended; (iii) introduction of a limited number of small additional activities aimed at contributing to achievement and sustainability of the PDO; and (iv) introduction of adjustments to the project’s RF to reflect the aforementioned changes and to clarify some of the definitions and measures. The restructuring does not include any changes to the PDO, project components or subcomponents. (a) Extension of Closing Date. The proposed restructuring would extend the project closing date by 12 months from the current (original) closing date of June 30, 2019, to June 30, 2020. This will allow for the critical activities described above to be completed across states. It would also allow for inclusion of new activities to be completed with project savings (see below), as well additional evaluation of key activities to be undertaken (including beneficiary surveys and feedback). (b) Some activities to be completed include: training of more primary school teachers, mentor teachers and head teachers in the core areas of reading, literacy and mathematics; provision of additional scholarships to teachers (with other qualifications apart from the NCE especially for states that have exhausted the non-NCE certified teachers) and training of more SBMC members in primary schools. (c) Introduction of a limited number of small additional activities aimed at contributing to achievement and sustainability of the PDO including the roll out of the administration of the harmonized monitoring tools at the school and LGA levels A study will be undertaken on ‘Almajiri elder children’ and girls transition The World Bank Nigeria Partnership for Education Project (P143842) and retention to upper basic education to facilitate a better understanding of these issues.– and to take advantage of the additional time the proposed project extension would provide. (d) Adjustments to the RF under the proposed restructuring include: (i) clarification of some indicators – including definitions and measurements; and (ii) adjustment of some targets to reflect implementation progress to date and reflect expected increased reach of the project with the expansion of some activities as described above and to reflect actual/cumulative values instead of the incremental values (which were presented for many indicators) in the original RF due to lack of baseline values. In addition, all indicators show as revised in the results framework – even if there was no change to the indicator or target value itself – as the end target date has been modified to reflect the revised closing date of the project. These clarifications and adjustments can be found in the Results Framework below and in the attached Annex I. 16. There will be no reallocation of funds across categories. Project spending is within the category thresholds. However, redistribution of funds within states by components will be carried out in the next NIPEP mission in order to ensure achievement and sustainability of the PDO. This will be discussed and agreed upon in the upcoming NIPEP supervision mission and would be recorded and communicated in the Aide memoire. III. SUMMARY OF CHANGES Changed Not Changed Results Framework ✔ Loan Closing Date(s) ✔ Implementing Agency ✔ DDO Status ✔ Project's Development Objectives ✔ Components and Cost ✔ Cancellations Proposed ✔ Reallocation between Disbursement Categories ✔ Disbursements Arrangements ✔ Disbursement Estimates ✔ Overall Risk Rating ✔ The World Bank Nigeria Partnership for Education Project (P143842) Safeguard Policies Triggered ✔ EA category ✔ Legal Covenants ✔ Institutional Arrangements ✔ Financial Management ✔ Procurement ✔ Implementation Schedule ✔ Other Change(s) ✔ Economic and Financial Analysis ✔ Technical Analysis ✔ Social Analysis ✔ Environmental Analysis ✔ IV. DETAILED CHANGE(S) OPS_DETAILEDCHANGES_LOANCLOSING_TABLE LOAN CLOSING DATE(S) Original Revised Proposed Proposed Deadline Ln/Cr/Tf Status Closing Closing(s) Closing for Withdrawal Applications TF-18918 Effective 29-Jun-2019 29-Jun-2020 29-Oct-2020 . The World Bank Nigeria Partnership for Education Project (P143842) . Results framework COUNTRY: Nigeria Nigeria Partnership for Education Project Project Development Objectives(s) The PDO is to improve access and quality of basic education in selected States, with particular attention to girls' participation. Project Development Objective Indicators by Objectives/ Outcomes RESULT_FRAME_TBL_PDO Indicator Name DLI Baseline Intermediate Targets End Target 1 2 3 4 To improve access and quality ofbasic education in selected States,with particular attention togirls Primary School Net enrollment rate (NER) disaggregated by 48.00 49.00 50.00 51.00 52.00 52.00 gender (Percentage) Action: This indicator has been Revised Gender parity index (primary 72.00 73.00 74.00 75.00 76.00 76.00 enrolment) (Percentage) Action: This indicator has been Revised Direct project beneficiaries 0.00 0.00 1,000,000.00 2,500,000.00 5,700,000.00 6,000,000.00 (Number) Action: This indicator has been Revised Female beneficiaries 0.00 39.00 47.00 48.50 50.00 50.00 (Percentage) The World Bank Nigeria Partnership for Education Project (P143842) RESULT_FRAME_TBL_PDO Indicator Name DLI Baseline Intermediate Targets End Target 1 2 3 4 Hausa reading rate of students enrolled in the Primary 2 and 3 4.00 0.00 0.00 8.00 10.00 10.00 grades. (Percentage) Action: This indicator has been Revised English reading rate of Primary 3 pupils as 3.00 0.00 0.00 8.00 10.00 10.00 measured by EGRA survey. (Percentage) Action: This indicator has been Revised System for learning assessment No No No No Yes Yes at the primary level (Yes/No) Action: This indicator has been Revised Utility of the learning assessment system 0.00 0.00 1.00 2.00 3.00 3.00 (Number) Utility of System for Learning Assessment 0.00 3.00 (Number) Utility of System for Learning Assessment 0.00 4.00 (Number) PDO Table SPACE The World Bank Nigeria Partnership for Education Project (P143842) Intermediate Results Indicators by Components RESULT_FRAME_TBL_IO Indicator Name DLI Baseline Intermediate Targets End Target 1 2 3 4 Promoting School Effectiveness and Improved Learning Outcomes Percentage of Beneficiary schools (including pre-primary and primary) implementing 0.00 40.00 60.00 80.00 100.00 100.00 80% or more of its SIPs activities. (Percentage) Action: This indicator has been Revised Number of NIPEP school grants awarded to pre-primary 0.00 2,500.00 5,000.00 8,000.00 11,000.00 11,500.00 schools. (Number) Action: This indicator has been Revised Number of early grade and primary 1 to 3 eachers who 0.00 2,974.00 36,713.00 73,808.00 96,000.00 96,000.00 completed/took any training using NIPEP funds. (Number) Rationale: Action: This indicator has been This indicator is being included to capture the training provided (outside funding for participation in NCE training) to early grade and primary 1 to 3 teachers. Revised Number of NIPEP school grants awarded to primary schools 0.00 16,720.00 (Number) Rationale: Action: This indicator is New This indicator is included as it provides a good measure of progress towards achievement of the PDO. The World Bank Nigeria Partnership for Education Project (P143842) RESULT_FRAME_TBL_IO Indicator Name DLI Baseline Intermediate Targets End Target 1 2 3 4 Increasing Access to Basic Education for Out-of-School Girls Number of Girls receiving 0.00 19,849.00 118,818.00 299,629.00 320,000.00 360,000.00 NIPEP scholarship. (Number) Rationale: Action: This indicator has been Year 4 target and end target for revised closing date have been modified. Revised Number of NIPEP-supported female teachers receiving NCE 0.00 12,000.00 scholarship and participating in NCE course. (Number) Rationale: This will measure those being funded each year to participate in NCE course; a separate indicator will track the number of which have completed that year. It Action: This indicator has been provides an opportunity to capture progress in this activity (explicitly measuring and providing information on participation in training each year, and not Revised just the portion that completed the NCE training). Number of School Based Management Committees 0.00 2,511.00 8,635.00 8,635.00 12,130.00 12,130.00 trained. (Number) Action: This indicator has been Revised Number of NIPEP-supported female teachers receiving a 0.00 3,546.00 scholarship and completing the NCE course. (Number) Action: This indicator is New Rationale: The World Bank Nigeria Partnership for Education Project (P143842) RESULT_FRAME_TBL_IO Indicator Name DLI Baseline Intermediate Targets End Target 1 2 3 4 The indicator tracking percentage completion only - is now replaced with two indicators: 1 measuring the number of teachers participating in training that year and this indicator which will measure the number of those who completed the NCE course. Strengthening Planning and Management Systems including Learning Assessment and Capacity Development Number of State Annual Education Sector reviews. 3.00 3.00 5.00 5.00 5.00 5.00 (Number) Action: This indicator has been Revised Number of state EMIS in place producing timely data. 3.00 3.00 5.00 5.00 5.00 5.00 (Number) Action: This indicator has been Revised Number of state EMIS in place and producing data in 3.00 5.00 June every year. (Number) Rationale: Action: This indicator has This indicator has been revised as the term "timely" is defined as "June every year" been Revised Number of State that developed and administered 0.00 2.00 1.00 2.00 3.00 3.00 standardized test. (Number) Number of State that administerd standardized 0.00 3.00 test (Number) The World Bank Nigeria Partnership for Education Project (P143842) RESULT_FRAME_TBL_IO Indicator Name DLI Baseline Intermediate Targets End Target 1 2 3 4 Rationale: Action: This indicator has States do not develop standardized tests been Marked for Deletion IO Table SPACE The World Bank Nigeria Partnership for Education Project (P143842)