Cambodia education quality improvement project. July, 2007

Technical Assistance Consultant’s Report

Project Number: 38559

July 2007

Kingdom of Cambodia: Enhancing Education Quality Project

(Financed by the Japan Special Fund)

Prepared by Cambridge Education Ltd., UK

For Ministry of Education, Youth and Sport, Royal Government of Cambodia

This consultant’s report does not necessarily reflect the views of ADB or the Government concerned, and ADB and the Government cannot be held liable for its contents. (For project preparatory technical assistance: All the views expressed herein may not be incorporated into the proposed project’s design.

Enhancing

Project

Cambridge Education Ltd. of the United Kingdom in association with SDC Ltd. Cambodia has been contracted by ADB to provide technical assistance to the Royal Government of Cambodia for the implementation of the Education Quality Improvement Project Preparation (TA-4823 CAM).

Document Distribution and Revision Sheet

Project Name: Enhancing Education Quality Project (ADB TA-4823 CAM)

Project Code: 231841ba01

Document Title: Document 14 Final Report

This document was prepared by Dr John Bailey Team Leader

Rev Date Originator Checker Approver Scope Nr. Of Issue of Revision

1 July 2007 John Bailey Jennifer Mudge John Kay N/A

Signatures

Scope of checking

This report has been (a) discussed with the international specialist concerned in relation to the input work plan agreed with the Client, the specialist’s terms of reference and to ensure it contains relevant issues and recommendations, which have been discussed in a debriefing session with the Client; (b) edited for consistency, adherence to the agreed project template, etc.

"This document has been prepared for the titled project or named part thereof and should not be relied on or used for any other project without an independent check being carried out as to its suitability and prior written authority of Cambridge Education Ltd. (CE) being obtained. Cambridge Education Ltd. (CE) accepts no responsibility or liability for the consequences of this document being used for a purpose other than the purpose for which it was commissioned. Any person using or relying on the document for such other purposes agrees, and will by such use and reliance be taken to confirm his agreement to indemnify Cambridge Education Ltd. (CE) for all loss and damage resulting therefrom. Cambridge Education Ltd. (CE) accepts no responsibility or liability for this document to any party other than the person by whom it was commissioned."

"To the extent that this report is based on information supplied by other parties, Cambridge Education Ltd. (CE) accepts no liability for any loss or damage suffered by the client, whether contractual or tortious, stemming from any conclusions based on data supplied by parties other than Cambridge Education Ltd. (CE) and used by Cambridge Education Ltd. (CE) in preparing this report."

EXECUTIVE SUMMARY

Project preparation processes

1. The Ministry of Education, Youth and Sport has been the Executing Agency for the project preparation (TA-4823 CAM). A Steering Committee, chaired by a Secretary of State from the Ministry of Education, Youth and Sport and including a representative from the Ministry of Economics and Finance, oversaw the preparation.

2. Cambridge Education Ltd. of the United Kingdom in association with SDC Consulting Co. Ltd. of Cambodia were contracted by the Asian Development Bank to provide technical assistance for the preparation of the Enhancing Education Quality Project (EEQP). The provision of technical services commenced on the 22nd November 2006. To facilitate collaboration, between MOEYS and the technical assistance team, a task force and seven technical working groups (TWG) were formed. An inception report was prepared in December 2006.

3. The objective of the technical assistance was to assist the Ministry of Education, Youth and Sport in reviewing identified sub-sectors including institutional development; teacher education; curriculum; textbooks and instructional materials; assessment and examination systems; information and communication systems; secondary schooling; poverty, gender, inclusion; and capacity building.

4. Various approaches were used to consult stakeholders at the central, provincial, district and college/school levels, as well as other projects and development partners: document review, interviews with a wide range of people, task force and technical working group meetings, visits to relevant institutions and national workshops. A number of working papers were prepared by the technical assistance team.

5. An Interim Report (February 2007) was prepared with a list of proposed interventions and submitted to the task force and steering committee. The interventions, accepted as a foundation for further planning were: professional development of teachers, curriculum and instructional materials, assessment and examinations, information and communication technology, secondary schools, teacher development policy and institutional development.

6. A design and monitoring workshop brought together the Ministry of Education, Youth and Sport staff from the relevant line departments, representatives from provincial offices and institutions and representatives from other projects in the education sector. The workshop resulted in a draft design and monitoring framework with statements describing the impact of the project, the outcome of the project and possible outputs; and for each output some initial targets, indicators, assumptions, risks and an outline of required inputs.

7. The design and monitoring workshop draft project design was scrutinized and further developed through meetings with technical working groups, meetings of the task force, a second national workshop and a final meeting of the steering committee. The final design covers 20 outputs organised in three components: education system management and development, teacher professional development and strengthening secondary education.

Context

8. Despite its historical disadvantage, Cambodia has made considerable progress in providing education. In 2006-2007, the gross enrollment ratio (GER) at primary level was 123 percent and the Net enrollment ratio (NER) was 92.1 percent. This indicates a 13.5 percent increase against an NER of 77.8 percent in 1997-1998. The impressive growth in enrollments at the primary level has led to high rates of increase in enrollments at the lower and upper secondary levels. Since 1997-1998, LS enrollments have grown by 135 percent and US enrollments grew by 260 percent. But, despite the rapidly growing demand for secondary education, the vast majority of children of secondary school age are not enrolled in school. The GER at the lower and upper

secondary level is 60 percent and 21.2 percent respectively. Corresponding figures for NER at the lower and upper secondary levels are 31.3 percent and 11.3 percent respectively. Such low levels of participation in secondary education are a severe constraint to Cambodia’s economic development and the Government faces a formidable challenge in expanding access beyond primary education.

9. Total external funding is financed by 124 development partners through 324 outstanding projects. The World Bank and ADB are the two major funding agencies and from 2002–2007 together account for 42 percent of the total project financing for education. Other funding agencies supporting education include European Commission (EC), Japan International Cooperation Agency (JICA), Swedish International Development Cooperation Agency (SIDA), United Nations Populations Fund (UNFPA), United Nations Children's Fund (UNICEF), and United States Agency for International Development (USAID). The World Bank’s support has been mainly targeted at primary and lower secondary education. EC has provided budgetary support with technical assistance to strengthen public financial management. USAid has supported curriculum development at the basic education level. JICA support has targeted teacher training, and curriculum development for science and mathematics.

The proposed project

10. The project will increase the number of educated and skilled people in Cambodia from all sectors of the Cambodian population by improving the quality and equity of education in Cambodia and more specifically providing for more effective secondary education, teacher training and education management systems.

11. The education system and management development component will disseminate the new Education Law; develop a policy framework for teacher education and teacher management; review the organization and functions of the Ministry of Education, Youth and Sport at central, provincial and district level including school management; strengthen the National Institute of Education; strengthen the functioning of information systems at national, provincial, district levels with consolidation at central level; and develop monitoring and quality assurance systems related to schools and teacher education institutions.

12. The teacher professional development component will enhance the management capacity of teacher training institutions; upgrade facilities including information and communication technology at regional teacher training centers and provincial teacher training colleges; increase enrollment in teacher training programs of females and students from disadvantaged areas; improve skills and competencies of teacher trainers in the pre-service teacher training program; improve teaching skills and competencies of secondary teachers; and develop the use of multi-media modalities for teacher education.

13. The secondary education development component will: develop a secondary education development plan; strengthen secondary school networks, secondary school management and secondary school improvement planning; increase enrollment in upper secondary schools of girls and children from disadvantaged areas; upgrade secondary school facilities including information and communication technology, laboratories and libraries; develop and use curriculum in secondary schools; provide textbooks and teacher's guides to upper secondary schools countrywide; enhance the capacity of the Pedagogic Research Department and the Education Materials Approval Board; and base assessment of student achievement in secondary education on curriculum standards.

14. The project investment cost is estimated at US$ 33.4 million equivalent, including physical and price contingencies, taxes and duties. The grant proceeds will be used to finance civil works; procurement of books and instructional materials, vehicles, equipment and furniture; scholarships; consulting services; training, workshops and technical meetings. The proceeds will not finance salaries of regular project staff, rental of office space, taxes and duties.

15. The Government has requested a grant of US$ 27.1 million from the Asian Development Bank’s Special Funds to help finance the Project. The Asian Development Bank will finance 81 per cent of the project costs. The Government will finance the remaining 19 per cent of US$ 6.3 million as counterpart financing.

16. As Executing Agency, the Ministry of Education, Youth and Sport will have overall responsibility for project coordination and implementation. A Project Steering Committee will provide overall guidance to the project. The Project Steering Committee will be chaired by a Secretary of State from the Ministry of Education, Youth and Sport. The Project Steering Committee will also include representatives from the Ministry of Economy and Finance, Ministry of Women's Affairs and Ministry of Planning.

17. The Director General of Education will serve as the Project Director. He will be supported by a deputy director and 5 staff and four support staff appointed by MOEYS. This staff will be located within the Directorate of General Education to oversee day-today project implementation. The Project Director will be a member of PSC and will report to it directly. A number of project activities will be delegated to relevant technical departments within MOEYS and will be implemented within the existing administrative structure.

18. Three technical units will be established to guide, and support implementation of component specific activities. The implementation of specific activities will be the responsibility of the departments under whose authority those activities fall. TUs will have representation from implementing departments. Each TU will have representation from a member of the Gender Working Group to ensure that gender aspects of different activities are mainstreamed. The TUs will report to the Project Director whose responsibility it will be to ensure coordination and supervision of TUs.

19. The project will be supported by approximately 628 person-months of consulting services (264 person-months international and 364 person-months national). The selection and engagement of consulting services will be procured in a single package, using international competitive bidding.

20. A base-line study will be undertaken at the beginning of the project. The monitoring and recording system and procedures will be reviewed and improved. A project performance management system will be developed and institutionalized within the Ministry of Education, Youth and Sport to monitor and evaluate implementation performance and development impact at various stages of the project cycle.

21. The Asian Development Bank and the Government will jointly undertake (i) half-yearly project reviews to assess progress in each component, identify difficulties or constraints and help determine ways to overcome them and (ii) conduct a mid-term review during the last quarter of the third year of project implementation to inform planning for the second half of the Project.

22. Direct beneficiaries include: (i) academic staff and management of the teacher training institutions (ii) approximately 8,500 teacher trainees (iii) approximately 14,400 current lower and upper secondary teachers; (iv) approximately 300 upper secondary school management teams (v) staff of the Ministry of Education, Youth and Sport including provincial and district offices. (vi) 4,000 girls and students from disadvantaged areas will receive scholarships to study at upper secondary schools some of which will be merit-based; (vii) 350,000 upper secondary school students will be provided with textbooks and approximately 7,000 upper secondary school teachers will be provided with teacher's guides.

23. The project has been designed so that recurrent costs will be minimized for the Government and community. The improvement of the quality support systems under the project is intended to reduce wastage, improve the internal efficiency of secondary education and reduce the cost of producing a graduate in Cambodia, particularly in the disadvantaged areas and areas dominated by ethnic minority groups. Although new construction and renovation of teacher education institutions and secondary school facilities are being financed, sustainability is being ensured by the Government and

local community’s commitment to contribute to the cost of operation and maintenance.

24. The first three sections of the report set out the context of the proposed project, looking at the objectives of TA-4823, the national context and aspects of the education system. This is followed by an account of reviewed issues and opportunities that concludes that investment in a number of areas to support education system management and development, teacher professional development and strengthening of secondary education was feasible. The proposed project is described and summarized through a design and monitoring framework which includes a summary of required inputs.

25. The targets and indicators included in the impact and outcome rows of the design and monitoring framework summarize the anticipated impact the project at the macro-level of the project design. The risks and assumption included in the impact and outcome rows of the design and monitoring framework identify a number of conditions and threats to the implementation of the project.

26. Three special features are integrated into the three components: information and communication technology, capacity building and broad interventions related to gender, poverty and ethnic minority representation. The sections on the project investment plan, the financing plan and project benefits supported by technical annexes describe the cost of the inputs in detail. Project benefits supported by an economic analysis, a sustainability section and a summary of the impacts and risks complete the feasibility report.

ABBREVIATIONS AND ACRONYMS

ADB Asian Development Bank

AusAid Australian Agency for International Development

BETT Basic Education Teacher Training

BEP Basic Education Project

BMC Budget Management Committee(s)

CBE Cambodia Basic Education

CCTD Committee on Continuous Teacher Development

CESSP Cambodia education Sector Support Programme

CIPS Cambodia Intercensal Population Survey

CFS Child Friendly Schools

DAC Disabilities Action Council

DGE Directorate of General Education

DHE Department of Higher Education

DOE District Office of Education

EC European Commission

ECED Early Childhood Education Department

EFA Education foe All

EFANP Education for All National Plan

EMAB Education Materials Approval Board

EMIS Education Management Information System

EQIP Education Quality Improvement Project

ESDP Education Sector Development Program

ESP Education Strategic Plan

ESSP Education Sector Support Program

ESWG Education Sector Working Group

EVEP Elective Vocational Education Programmes

FNW First National Workshop

GMSE Gender Mainstreaming Strategy in Education

GSED General Secondary Education Department

HED Higher Education Department

HIV Human immunodeficiency virus

IAAD Information and ASEAN Affairs Department

ICDL International Computer Driving Licence

ICT Information and Communication Technology

IEC Information Education and Communication

ISMEC Improving Science and Mathematics Education at Upper Secondary Level

IT Information Technology

JICA Japan International Co-operation Agency

KIA Key Improvement Areas

LLSP Local Life Skills Programme

LSS Lower Secondary School

MIS Management Information System

MOEF Ministry of Economics and Finance

MOEYS Ministry of Education, Youth and Sport

MPIPCD Master Plan to Implement the Policy for Curriculum Development

NCE National council for Education

NFE Non-formal Education

NGO Non-Governmental Organisation

NIE National Institute of Education

NIED National institute for Educational Development

NIS National Institute of Statistics

NSDP National Strategic Development Plan

PAP Priority Action Programme(s)

PB Programme Budgeting

PCD Policy for Curriculum Development

PDH Publishing and Distribution House

PED Primary Education Department

PGEMR Poverty, Gender and Ethnic Minority Representation

PMU Project Management Unit

POE Provincial Office of Education

PPTA Project Preparation Technical Assistance

PRD Pedagogical Research Department

PSC Project Steering Committee

PSTTC Pre-school Teacher Training College

PTR Pupil Teacher Ratio

PTTC Provincial Teacher Training College

QA Quality Assurance

RGC Government of Cambodia

RTTC Regional Teacher Training Centre

SBA School Based Assessment

SCN Save the Children Norway

SOE Statement of Expenditures

SRP School Readiness Programme

TA Technical Assistance

TEMIS Teacher Education Management Information System

TG Technical Groups

TGL Technical group Leaders

TU Technical Unit

TNA Training Needs Analysis

TT Teacher Training

TTC Teacher Training College

TTD Teacher Training Department [MoEYS]

UNESCO United Nations Education, Scientific and Cultural Organisation

UNICEF United Nations Children's Fund

USAID United States Agency for International Development

USD United States Dollars

USS Upper Secondary School

WB World Bank

APPENDICES

Appendix 1Design and monitoring framework

Appendix 2 DMF Expanded list of activities

Appendix 3 Approaches to consultation

Appendix 4 TA-4823 CAM working papers

Appendix 5 Structure of the Education System

Appendix 6 Teacher demand projections

Appendix 7 Secondary education statistics

Appendix 8 MOEYS organisational chart

Appendix 9 Selected education sector documents

Appendix 10 Education Indicators

Appendix 11 External assistance to the education sector

Appendix 12 Key projects delivering external assistance

Appendix 13 Distribution of RTTC and PTTC

Appendix 14 Summary poverty reduction and social strategy

Appendix 15 Capacity building guidelines

Appendix 16 Information and communication technology

Appendix 17Detailed cost tables

Appendix 18Implementation schedule

Appendix 19Procurement packages

Appendix 20Terms of reference for consultants

Appendix 21 Economic and sustainability analysis

ENHANCING EDUCATION QUALITY PROJECT

1.0 INTRODUCTION

Executing agency

1. The Ministry of Education, Youth and Sport (MOEYS) is the Executing Agency for the project preparation (EEQP 1 PPTA TA-4823 CAM). A Steering Committee was established, chaired by a Secretary of State from MOEYS and included a representative from the Ministry of Economics and Finance (MEF). To facilitate collaboration, between MOEYS and the technical assistance, a task force and seven technical working groups (TWG) were formed.

Technical services

2. Cambridge Education Ltd. of the United Kingdom in association with SDC Consulting Co. Ltd. of Cambodia has been contracted by the Asian Development Bank (ADB) to provide technical assistance to the Royal Government of Cambodia (RGC) for the preparation of the Enhancing Education Quality Project (EEQP). The provision of technical services commenced on schedule on the 22nd November 2006 and completed on 21 July 2007.

Objectives of the technical assistance

3. The objectives of the technical assistance were to assist MOEYS in a review of areas that support quality in education. This review has included an assessment of institutional, management and technical capacity of institutions and MOEYS departments specifically responsible for teacher training, curriculum development, textbook provision and student performance and examinations. In addition attention was paid to those departments and offices (central, provincial and district) responsible for information systems, finance and planning. Following the review the TA assisted the MOEYS in preparing this project feasibility report. The project design is summarized in section 5.0 and Appendix 1. More details of activities are included in Appendix 2.

Consultation with government and development partners

4. Various approaches were used during the review and analysis phase to consult MOEYS stakeholders at the central, provincial, district and college/school levels, other projects and development partners (Appendix 3). Approaches included document review, interviews with a wide range of people, participation in meetings, task force and technical working group meetings, visits to relevant institutions and two national workshops. During the planning stage a two-day workshop on developing a Design and Monitoring Framework (DMF) was held to begin the project design phase. The second national workshop reviewed the draft Design and Monitoring Framework. Reports of these workshops are included in Appendix 4.

Working papers

5. A number of working papers were prepared by the technical assistance team. These papers are listed in Appendix 4 and collected together in the CD Rom contained in this report.

1 At the start of the project preparation the MOEYS requested a change of name from the Education Quality Improvement Project (EQIP) to the Enhancing Education Quality Project (EEQP).

2.0 CONTEXT Government

6. Cambodia is a constitutional monarchy and its constitution provides for a multiparty democracy. The Royal Government of Cambodia, formed on the basis of elections internationally recognized as free and fair, was established on September 24, 1993. The King is head of state; and an appointed prime minister forms a government. The bicameral legislature consists of an elected National Assembly and a Senate. The judiciary includes a Supreme Court, an Appeal Court and lower courts. The country is divided into 20 provinces (khett, singular and plural) and 4 municipalities (krong, singular and plural). There are further subdivisions into districts (srok), communes (khum), villages (phum) and islands (koh).

Economy

7. Consolidating rapid growth over the 2004-2005 period, the Cambodian economy expanded strongly in 2006, reflecting robust clothing exports, tourism receipts and construction activity. GDP growth in 2006 was estimated at 10.4 percent, consolidating double-digit growth of the two previous years. The upturn was buttressed by stronger industrial production and robust expansion in services and construction activity. In industry, clothing and textile exports grew by an estimated 32 percent in volume terms as manufacturers took advantage of temporary safeguard measures imposed against clothing exports for a number of countries including China. Construction activity remained relatively strong due to a boom in residential and commercial buildings in urban centers like Phnom Penh and Siem Reap. Growth in services was bolstered by solid increases in tourist arrivals. Agricultural production expanded by a stronger than expected 4.4 percent from the record levels achieved in 2005. This was mainly the result of an increase in land under irrigation.

8. The economic growth rate is forecast to average over 9 percent in the next two years based on key assumptions that include: (i) the RGC continuing to implement its National Strategic Development Plan 2006-2010, which aims to achieve interim targets of the Cambodia Millennium Development Goals; (ii) continued strong performance in agricultural production including diversification of crops and continued robust growth in construction activities, tourism and garment sectors; (iii) no slackening of the RGC's continued reform program and donor support to these reform efforts especially in improving governance and accelerating structural changes; and (iv) continued political stability and favorable environment for business and investments.

9. In the medium term, the economy is expected to remain resilient with strong diversification in non-agricultural growth and average overall growth is expected to be about 6-7 percent over the medium term. The projected medium-term trends of the Cambodian economy include: (i) garment exports, construction and tourism continuing to underpin buoyant economic activity in the near term but decelerate in the medium-term as the private sector begins to diversify to a broader set of industrial activities. The temporary safeguards imposed by the U.S.A. and the European Union (EU) against Chinese garment exports for the next 2-3 years are expected to help the industry adjust to the heightened competition from low cost producers; (ii) overall agricultural output remaining resilient with sustained progress in crop diversification and expansion of agro-industry and agribusinesses. The policy commitment to rural reforms, in particular increasing irrigation and land allocation, should lead to better agricultural performance. The increase in agricultural productivity and diversification of crops is expected to continue and provide further impetus to the strong growth momentum in agriculture; (iii) inflation will ease to about 5 percent as higher oil prices would impede a more rapid decline. In the

medium term, the inflation rate is expected to decline to the level of 4.2 percent in 2007, 3.5 percent thereafter.

Demography and population

10. Total population in Cambodia at year-end 2006 was estimated at 14 million people 2 , increasing from 11 million people in 1994. With an average annual growth rate of 1.8 percent, the population is projected to increase to over 15 million people in 2010. Cambodia's population is generally young, with 34 percent between the ages of 014 years, 62.4 percent between the age of 15-64 years and only 3.6 percent aged 65 years and over. The dependency ratio 3 to the population in the age group (15-64) is 74.0, 59.7 and 76.8 for the whole kingdom, urban areas and rural areas respectively. The sex ratio (male/female) at birth is 1.05, under 15 years 1.02, 15-64 years 0.94 and 65 years and over 0.61. Such a ratio for the whole population is 0.95 and those for urban and rural areas are 0.96 and 0.95 respectively.

11. GDP per capita is US$ 385 4 in 2005 increased from US$ 288 in 2000. About three fourths or 74.2 percent of the employed population work in agriculture, 18.8 percent in the service sector and only 7 percent work in the manufacturing sector. Just 0.2 percent of workersare employers (or self-employed) and 13 percent are paid employees. Most of the workers are own-account workers or unpaid family workers.

12. The labor force has 7.6 million persons, or 54 percent of the total population (14 million). As children aged 0-6 years are not considered to be economically active and only small percentages of those aged 7-14 years are in the labor force, the labor force participation rate is higher when only older ages are considered. Thus, 65.5 percent of the population aged 7 years and over and 83.7 percent of the population aged 15 years and over are economically active. Male labor force participation rates exceed those of females but because females constitute 51.7 percent of the total population they outnumber males marginally in the labor force. Male and female labor activity rates are almost the same. The activity rate in urban areas is 51.2 percent for males and 46.4 percent for females, while in rural areas the activity rate for males and females is 55.7 and 56.6 percent, respectively. The lower rate for males is mainly attributable to the larger number of males under age 15 and, thus, mostly not active.At young ages between 15 and 19 higher proportions of girls than boys are in the labor force.

13. Although labor force participation rates are high, a significant proportion of the labor force is unemployed. Overall, 7 percent of the labor force is unemployed and the unemployment rate is 6 percent in urban areas. According to the Cambodia InterCensal Population Survey (CIPS) 2004 carried out by the National Institute of Statistics (NIS), it appears to be more difficult for females than males to find employment in urban areas. The overall unemployment rate of females is 6.7 percent, compared with 7.6 percent among males. In rural areas the unemployment rate of males is marginally higher than the rate for females. But in the urban areas, the opposite trend is noticed. Also according to the CIPS 2004, the unemployment rates for the literate and illiterate persons are 7.3 and 5.0 percent respectively at the country level. The unemployment rate for urban literate and illiterate people are 6.1 and 8.1 percent respectively. The unemployment rates in rural areas are 8.1 and 4.8 percent for literate and illiterate people respectively. This indicates that in rural areas the population finds it a little more easy to get a job even though they are not literate owing to the casual nature of agriculture production. It is also noticed that the higher

2 According to the Cambodia Socio-Economic Survey, 2004, national Institute of Statistics the population was 13.5 million in 2004. With annual growth rate of 1.8 percent, population is estimated at 14 million at year end of 2006.

3 Percentage of the population in the younger age groups (0-14) and older age groups (65+), who are not in the labor force.

4 At constant prices and based on preliminary data provided on National Institute of Statistics (NIS) website for 2005 figure.

the educational level the lower is the unemployment rate, except for undergraduates and graduates. This is the case for both urban and rural areas. Unemployment rates for literate males and females at the national level are quite similar in percentage with 7.9 and 7.3 percent respectively. Unemployment rates for women in urban and rural areas are the same and unemployment rates for literate men in urban areas are lower than rural areas.

Poverty and educational disadvantage

14. Cambodia's poverty headcount is estimated at 35 percent, i.e., 35 percent of the population is estimated to have been living under the national poverty line. One of five Cambodians lives under the food poverty line. Poverty was considerably higher in rural areas (39 percent) than urban areas (25 percent in urban areas other than Phnom Penh where it was 5 percent).

15. Poverty in Cambodia is overwhelmingly a rural phenomenon. According to the Cambodia 2004 Socio-Economic Survey, 91 percent of the poor lived in rural areas. The rural areas of the Tonle Sap and Mountain/Plateau regions experience both the highest poverty headcounts and the most pronounced poverty severity. Poverty headcount measures in rural Tonle Sap and rural Mountain/Plateau regions were 45 percent and 56 percent, respectively. Poverty severity measures in both regions were about twice the national average. Over 40 percent of the nation’s total poor live in the Plain region and about 50 percent live in the Tonle Sap and Mountain/Plateau regions.

16. In terms of occupational profile, households with heads engaged in agricultural activities or employed as domestic workers, experience the highest incidence of poverty (averaging over 40 percent) and the worst poverty severity. Households in which the head of household was employed in one of these two occupations together account for almost two thirds of all the poor in Cambodia. The occupational group which enjoys the lowest poverty incidence was that of households headed by an individual working in the public sector.

17. Poor households have higher dependency burden and lack human capital. They tend to be uneducated, unskilled and unhealthy. The poor, particularly the extreme poor are concentrated in rural and remote areas, with limited access to roads, markets and basic services. They also lack secure land tenure and access to irrigation facilities. Critical problems for the urban poor revolve around security of housing rights and opportunities for gainful income generation or employment. Many in the squatter settlements claim tenancy rights with limited right to some services but lack secure housing tenure and are vulnerable to evictions.

Poverty and education

18. The overall financing of the education system is still heavily reliant on households’ private contributions to both direct and indirect education costs. Although various surveys vary widely in their estimation of these costs, even conservative socioeconomic surveys report that on average, unofficial monthly school fees are KR3,500 (US$ 0.9), KR8,000 (US$ 2) and KR10,200 (US$ 2.5) per student at primary level, lower secondary and upper secondary level respectively. These do not include costs for other incidentals for other incidentals such as uniforms, stationery, etc.

19. The Cambodia 2004 Socio-Economic Survey indicates that educational expenses per student for one school year include school fees, tuition, textbooks, other school supplies, gifts to teachers and contribution to building funds. Households estimate educational expenses at KR 50,000 (US$ 12.5) for pre-school and primary school students, KR 393,000 (approximately US$ 100) for secondary schools, KR 1.1

million (US$ 275) for technical/vocational schools and KR 2.1 million (US$ 525) for universities.

20. Recent surveys also highlight that households (especially more affluent households in urban centers) are willing to pay substantially for high quality education. The Cambodia 2004 Socio-Economic Survey also indicated that parents are willing to pay 10 times as much for quality private schooling, particularly at the secondary level. It appears that parents judge that the greater guarantee of access to competitive post-secondary education (especially the elite university faculties) represents a worthwhile investment.

21. However, this largely unregulated private financing of education has resulted in a potential education/poverty trap. For example, the representation of the poor is much greater in the primary student population than in the secondary or tertiary student population. This is particularly true of Cambodia, where 20percent of primary students but only 2 percent of upper secondary students are drawn from the poorest 20 percent of the population. In contrast, 61 percent of the upper secondary students in the country come from the richest 20 percent of the population. The representation of the poor in tertiary education is zero, while the richest 20 percent of the population accounts for 57 percent of tertiary education.

22. The above analysis raises a number of key financial planning and management issues. First, there is a strong argument for devoting a large share of public resources for primary education where the poorest are most represented. Second, to assure reduced cost barriers to secondary education, the level of formal and informal payments to schools and teachers needs to be contained to affordable levels and better regulated. In some instances, there may be a case for selective fee waivers for primary and secondary education.

23. Another contributing factor in this education/poverty trap is the demand for school age children, often girls, to contribute to household chores and household income generation. For example, in a recent survey, it was estimated that of the 1.6 million school age children not attending full time, around 25 percent stated household income/work responsibilities as the primary factor. In contrast, only 8 percent of the sample cited lack of suitable, accessible education provision as the primary barrier.

ADB’s sector strategy

24. The Asian Development Bank’s (ADB) vision for education, as stated in its draft Education Policy is that all children and adults will have equitable access to education of sufficient quality to empower them to break the poverty cycle, to improve their quality of life, and to participate effectively in national development. ADB’s poverty reduction strategy also calls for support for provision of basic services, including education, as a key poverty reduction measure.

25. Over time, ADB’s strategy for the education sector in Cambodia has evolved to emphasize strengthening the investments made during past projects and build upon them to move towards more integrated support for the education sector.ADB has provided substantial support to education. With the first Education Sector Development Program (ESDP I), approved in 1999, ADB provided program support for the Government’s priority action program and for expanding access to primary education. It also provided support for curriculum development and textbooks. ESDP II, approved in 2004, continued the support for policy reforms but shifted support for expanding access to lower secondary education, and upper secondary education through school facilities development. ESDP II also included technical assistance for planning for secondary education development. ADB has also supported policy reform and governance and regulatory reform for decentralization of education through an advisory technical assistance linked to ESDP II. ADB has

also provided assistance for expanding access to primary education for children from disadvantaged areas and for upgrading primary schools that do not offer a full five year cycle of primary schooling. ADB’s support to the education sector has been fully consistent with Government priorities as enunciated in the ESP and the ESSP. The proposed Project will provide much needed support for system-wide strengthening of institutional capacity for quality education. It will also expand and strengthen secondary education which is increasingly being recognized as key to national economic development.

3.0 ASPECTS OF THE EDUCATION SYSTEM School system

26. As mentioned earlier Cambodia has an estimated population of just over 14 million and a population growth rate of 1.8 percent. In the 2006/07 school year there were 9,018 schools with 80,733 classes. In these schools 3,387,310 students studied, 1,574,900 of the students were girls. 77,794 teachers, of which 32,068 were women, taught them. 5 The schools served the 2,530,000 households that make up 13,406 villages, 185 districts, 24 provinces including the 4 municipalities 6

27. To deliver education services the system has a number of levels starting with preschool for children aged from 3 to 5. Basic education covers a 9-year period with primary school covering grades 1 to 6 and lower secondary from 7 to 9. Entry to the upper secondary level (grade 10) follows a national examination at the end of grade 9 and finishes with a national examination at the end of grade 12 (Appendix 5). Technical and vocational education training programs run parallel to the upper secondary programs at grades 10,11 and 12 and the higher education programs run at various universities and institutes that provide education for grade 12 graduates. Running parallel to formal education provision are opportunities in the non-formal sector. Vocational training is the responsibility of the Ministry of Labor and Vocational Training.

Teacher education

28. Teacher education is provided through national, regional and provincial providers. The National Institute of Education (NIE) runs programs training university graduates to become upper secondary teachers. The NIE also trains educational administrators. Lower secondary teachers are trained at regional teacher training centers (RTTC) and primary teachers are taught at provincial teacher training colleges (PTTC). A teacher training institution in Phnom Penh trains pre-school teachers (PSTTC). It is intended that the resource centers built under the ADB funded Education Sector Development Project (ESDP I) will function as mini-PTTCs in provinces without PTTCs. In all institutions 7,261 teachers were in training of whom 3,034 were women 7, for the academic year 2005-2006 8

Teacher demand projections

29. Demand for additional teachers is projected for the lower secondary and upper secondary levels in the Kingdom of Cambodia for the 2007-2015 period. Although the focus is on lower secondary and upper secondary levels, the projections for primary levels are also presented due to their transitional features. Teacher demand projections are based on projected annual enrollment by education levels, target

5 2006-2007 Education and Statistics MOEYS Phnom Penh

6 2002-06 Education Indicators MOEYS Phnom Penh

7 Data from TTD,MOEYS approved 9th March 2007, TA 4823 CAM document D12 Consolidated Reports of TA Team

8 Data from TTD,MOEYS approved 9th March 2007, indicates total enrollment for 2006-2007 is 8880 (4019 women)

pupil - class ratio (PCR), attrition rate, teacher turnover rate and teacher retirement rate. Summary projection results are outlined below and detailed results can be found in Appendix 6.

30. At the primary education level, total additional teachers needed for the period from now to 2015 will be 30,384 primary teachers, if all the assumptions hold and other things remain constant. In particular, the total new primary teachers needed are broken down as follows: 2,346 teachers for 2006/07, 1,462 teachers for 2007/08, 2,401 teachers for 2008/09, 3,891 teachers for 2009/10, 4,309 teachers for 2010/11, 4,423 teachers for 2011/12, 4,121 teachers for 2012/13, 3,830 teachers for 2013/14 and 3,600 teachers for 2014/15.

31. Lower secondary school (LSS) teacher projections are produced in two scenarios: (i) Scenario 1 - based on pupil-class ratio and weekly teaching hours per teacher; and (ii) Scenario 2 - based on staff norms. The two scenarios yield different results. Scenario 1 indicates a total teacher demand of 43,217 and scenario 2 a total teacher demand of 39,797. Mean variance between the two scenarios is 380 or just less than 1 percent of the total projected number of teachers in any of the two scenarios. In this regard, averaging of the projected figures in both scenarios would make the projections of LSS teacher demand more precise. The results indicate a total shortfall of 41,507 LSS teachers from 2007 up to 2015. Annual additional LSS teacher demand is broken down as follows: 8,428 teachers for 2006/07, 4,880 teachers for 2007/08, 2,292 teachers for 2008/09, 2,125 teachers for 2009/10, 2,106 teachers for 2010/11, 3,899 teachers for 2011/12, 5,518 teachers for 2012/13, 6,313 teachers for 2013/14 and 5,947 teachers for 2014/15.

32. Upper secondary school (USS) teacher projections are again produced in two scenarios: (i) Scenario 1 - based on pupil - class ratio and weekly teaching hours per teacher; and (ii) Scenario 2 - based on staff norms. The two scenarios yield different results. Scenario 1 indicates a total teacher demand of 37,272 and scenario 2 a total teacher demand of 34,907. Mean variance between the two scenarios is 263 or just less than 0.8 percent of the total projected number of teachers in any of the two scenarios. Again, averaging of the projected figures in both scenarios would make the projections of USS teacher demand more precise. It is indicated that total additional demand for USS teachers during the 2007-2015 period is 36,090 USS teachers. Annual additional USS teacher demand is broken down as follows: 4,763 teachers for 2006/07, 2,328 teachers for 2007/08, 2,913 teachers for 2008/09, 3,748 teachers for 2009/10, 4,337 teachers for 2010/11, 3,814 teachers for 2011/12, 3,852 teachers for 2012/13, 4,098 teachers for 2013/14 and 6,237 teachers for 2014/15.

33. Summing up the projected demand in the lower and upper secondary school levels produces an aggregate shortfall of 77,596 secondary school teachers from 2007 to 2015. The annual additional secondary teachers required are as follows: 13,190 teachers for 2006/07, 7,208 teachers for 2007/08, 5,205 teachers for 2008/09, 5,873 teachers for 2009/10, 6,442 teachers for 2010/11, 7,714 teachers for 2011/12, 9,370 teachers for 2012/13, 10,410 teachers for 2013/14 and 12,184 teachers for 2014/15.

34. As far as elective subject system for Grade 11 and 12 is concerned, it would help to project teacher demand on a subject basis. However, it is not possible due to the uncertainty what the system will bring about when it comes to actual implementation. It is important to note that there will be a shortfall of teachers for high-demand subjects while it is not possible to plan well ahead (at least in the area of teacher training) due to the demand-of-choices uncertainty. Also, the scale of USS in Cambodia is not large enough to be able to achieve synergies (i.e., economies of scale) in teacher capacity utilization and other resources as may be the case in other places. Best practices show positive results of elective subject systems to the national economy, but the application of this system needs two preconditions: (i) scale of schools large enough to achieve synergies; and (ii) user

willingness to pay, strong enough to recover at least operating costs. Both preconditions are not in existence in Cambodia and will take some time for them to be established and sustainable. In this regard, the elective subject system for Grade 11-12 is not resource efficient in the short term and this policy issue may need to be revised.

Secondary education

35. In the Education Statistics and Indicators 2006/2007 (MOEYS 2006) secondary schools (colleges and lycées) and school levels (lower and upper secondary) are defined. The 846 colleges are lower secondary schools with grades 7 through 9. However some lower secondary schools may not have all three grades. The 283 lycées are upper secondary schools with grades 10 through 12 but some also have lower secondary grades. Statistics relating to the lower secondary level are collected from all schools that have grades 7 to 9 (911 schools) and statistics relating to the upper secondary level are collected from all schools with grade 10 to 12 (283 schools).

36. In 2006/07 at the upper secondary level there were 222,271 students (88,701 girls) studying in 4,303 classes being taught by 6,688 teachers (1,956 females). At the lower secondary level there were 626,005 students (285,669 girls) in 11,783 classes being taught by 18,579 teachers (6,070 females) 9. More details are given in Appendix 7.

37. Two major interventions funded by the World Bank and the Asian Development Bank are rapidly changing the scale of access to secondary education in support of the Education Strategic Plan (ESP) 2006-2010. Other interventions relate to increasing the number of lower secondary teachers and developing professional competencies.

Ministry of Education, Youth and Sport

38. The mission of leading, managing, developing and providing education to the children of Cambodia is the responsibility of the Ministry of Education, Youth and Sport (MOEYS). However, this has to be understood in the context of wider Government policies related to decentralization and de-concentration, with education offices at provincial and district level and school management related to communities and communes.

39. The vision of the MOEYS is stated as establishing and developing human resources of the very highest quality and ethics in order to develop a knowledge-based society. The Ministry’s mission is stated as leading and developing the education, youth and sport sector in Cambodia and to respond to the socio-economic and cultural development needs and the reality of globalization. The policy of the MOEYS is to universalize 9 years of basic education and develop opportunities for functional literacy, to modernize and improve the quality of education through effective reform, to link education and training with the labor market and society and to rehabilitate and develop the youth and sport sub-sectors.

40. The organizational chart of MOEYS identifies the established high-level positions of Minister, Secretary of State and Under Secretary of State overseeing six structures at the directorate level (Administration and Finance, Education, Higher Education, Youth and Sport and the Inspectorate General plus an EFA Secretariat). Below these directorates, inspectorate and secretariat level structures are a number of supporting technical departments (Appendix 8). As stated technical and vocational education is no longer the responsibility of the MOEYS and is not represented in the organization chart.

9 MOEYS Education Statistics, 2006-2007

Laws, policies, programs and plans

41. For the purpose of this report a policy is a set of principles to guide decisions and actions. From the set of principles, programs and plans of action can be developed. The policy process includes the identification of different alternatives, such as programs or spending priorities and choosing among them on the basis of the impact they will have. Policies can be understood as political, management, financial and administrative mechanisms arranged to reach explicit goals. To enforce policies the principles may be set in law. Key documents are summarized below to help map out Cambodian national policy for the education sector, others are listed in Appendix 9.

42. It is anticipated that the draft Education Law when passed will set a framework for the implementation and consolidation of a number of the policies referred to in various planning and programming documents discussed below. The Education Law includes articles relating to the development and management of the teaching workforce of the school and teacher education sub-sectors. The draft Education Law also states that government shall establish a National Council for Education (NCE) to promote the development of the education sector. The National Council for Education will be the national education institution that is accountable to the government and which is qualified as an administrative artificial person in accordance with the law of the Kingdom of Cambodia. The rules and responsibilities of the National Council for Education shall be determined by a separate regulation.

43. Education is a priority area in human development and capacity building for the RGC and the National Strategic Development Plan (NSDP) endorses the Education Sector Support Plan (ESSP) (2006-2010).Section 4.91 of the NSDP includes points related to development of the teaching workforce. Key strategies and actions in the education sector to achieve teacher related goals and targets are described. These include the upgrading of teachers qualifications by professional development linked to performance incentives and paying special attention to increasing teachers' salaries (already being undertaken) and making them available on time.

44. The Rectangular Strategy for Growth, Employment, Equity and Efficiency in Cambodia sets out the RGC's comprehensive strategy on education. The strategy states that the government will continue to increase budget expenditures and mobilize increased international assistance to enable incentives for teachers; assure quality instruction; increase provision of educational materials, equipment, libraries and laboratories; and build dormitories for students, especially female students; continue to reform curricula and training programs; provide scholarships to poor students; promote literacy and informal education programs; finance construction of schools in the rural areas and support school operating costs.

45. The Strategic Framework for Decentralization and Deconcentration Reforms guides all reforms affecting management systems at provincial/municipal, district/khan and commune/sangkat levels. All policies, legal instruments and operational procedures of ministries and institutions of the Royal Government relating to the management, distribution of responsibilities and resources to provincial/municipal, district/khan and commune/sangkat levels must be consistent with the objectives and principles of the decentralization and deconcentration strategy in order to facilitate the development of systems and structures. At the same time, the strategic framework is also a main document to divide the powers and duties between the levels of administration.

46. Government spending will accord the highest priority for implementation of Education for All (EFA) and associated teacher development programs. The EFA plan is predicated on a set of assumptions and measures that consolidate and extend cost reduction strategies for accessing basic education services. The plan is also predicated on assumptions for

incremental increases in education staff remuneration and a shift towards performance based remuneration and targeted incentives for teachers (e.g. remote school allowances) as well as merit driven promotion and training policies.

47. The Education Strategic Plan (ESP) planning process has through more than one cycle taken the policy and strategy dimensions described above and defined actions and targets. From the text and the matrices contained in the document there are a number of strategies associated with policy that directly relate to quality issues: ensure teacher provision in remote and disadvantaged areas; improve the efficiency of staff deployment; increase service remuneration and incentives linked to performance; improve pre-service and in-service teacher development; strengthen teaching and learning quality with pedagogy and Information and Communication Technology (ICT) awareness; increase transparency and improve performance monitoring and accountability of teachers, schools and post-secondary institutions.

48. The education staff development program (ESP 2006-2010 Page 26) supports greater responsiveness to changing sub-sector teacher demand and improved strategic and financial planning and management. There are two components: one to introduce the mini-PTTC training facilities in 6 provinces to support retraining of basic cycle teachers; and the second to upgrade NIE, RTTCs and PTTCs to be able to respond more flexibly to education staff development and teacher training needs, alongside addition of specialist facilities and classrooms (e.g. science, mathematics, technology/ICT and foreign languages).

49. The aim of the Education Sector Support Program 2006-2010 (ESSP 2006-2010) is to outline how the policies and strategies laid out in the ESP 2006-2010 will be put into practice (ESSP 2006-2010 page 2). The ESSP identifies the necessary program activities and priorities in reaching the Cambodian Millennium Development Goals and the goals set out in the National EFA Plan. The basic principle adopted in the ESSP is that programs will be planned and implemented through the Government and Ministry systems rather than through parallel modalities. The management framework for ESSP places the focus on strengthening appropriate MOEYS directorates and departments at central and provincial levels, including delegation of responsibilities to districts, clusters/communes and schools.

50. In the education service efficiency section of the ESSP the objectives and justification part gives a number of outcomes including re-emphasizing the need for performance-based staff remuneration. Other outcomes relate to improved equity and efficiency in the deployment of teaching and non-teaching staff, responding to the targeted expansion of primary and secondary education opportunities to underserved and difficult/remote communes, as well as more equitable deployment of subject specialists. Associated with this is replacement of retiring and contract staff with better-qualified staff and new teachers from TTCs.

51. The strategies and coverage in the ESSP note a shift of strategy towards the deployment of new teachers rather than re-deployment of existing teachers. When teachers and administrators retire from over-staffed schools, they may not be replaced in order to minimize disparity between over-staffed and under-staffed schools. All existing teachers and non-teaching staff in remote/difficult areas will be provided with remote/difficult posting allowances. This program will be complemented by a teacher housing program in the facilities development program to enhance staff retention.

52. The ESSP also mentions programs related to the management of teachers including: performance–based incentives; matching teacher supply to education sector expansion; staff utilization, instructions for education planning components in provinces to develop annual plans for the use of staff, newly trained teacher deployments and re-deployment; budget allocations for the provinces and setting of

minimum efficiency targets for each province (number of staff to be deployed and redeployed); deployment plans at all levels of the education system.

53. Under the heading of the teacher development program there are a number of objectives and components to ensure an adequate supply of teachers at all levels and for system expansion (ESSP 2006-2010 page 15). As part of this objective there is an intention to upgrade TTC trainers, school directors and other key MOEYS personnel. Additional components of this program include providing annual operational budgets to the Centre of Preschool and Pedagogy, 18 PTTCs, 6 RTTCs and six new resource centers; capacity building of primary and secondary school directors and continuous teacher development through in-service training programs.

54. Four programs are listed: operational budgets for TTCs, TTC staff development, education management development and continuous teacher development/inservice. The first of these programs focuses on: providing annual operational budgets for the 25 TTCS and enabling a more flexible response to changing enrollment patterns; introducing the Child Friendly School (CFS) and School Readiness Program (SRP) into the PSTTC and PTTC curricula; and delivery of HIV/AIDS awareness courses with supporting textbooks and manuals to all newly trained teachers. The second program focuses on establishing common levels of competence for all TTC staff through a staff development program that will provide formal certification as a foundation for the rapid development of the national teacher education system. The third program aims at equipping school directors at all levels with skills to take up active leadership in their schools through a modular training program based on a combination of distance learning and residential workshops. The fourth program has six activities listed to provide continuous teacher development: multi-grade teachers already receiving a multi-grade teaching incentive; upgrading primary school teachers to become lower secondary/basic education teachers; training on use of new textbooks, new curriculum and minimum learning standards; providing ICT training to all teacher trainers and secondary school teachers, providing in-service training to teachers on CFS and SRP; and delivery of an in-service child friendly HIV/AIDS life skill training with appropriate teaching approaches.

55. There are a number of other documents that have been reviewed in order to map the dimensions of strategies and policies that pertain to teacher education including Gender Mainstreaming Strategy in Education 2006-2010, Policy and Strategies on ICT in Education 2004 and the Policy for Curriculum Development 2005-2009. There are also additional papers in preparation that will affect the working environment of teachers. These include draft sub-decrees and instructional circulars (teachers' professional code, structure of the MOEYS, recruitment of teachers). Also in preparation are documents related to teacher standards, school standards and curriculum standards.

56. From the draft teacher policy analysis and consultations carried out by the team, there does not yet seem to be a comprehensive policy for teacher development. A comprehensive integrated policy document is required to support many planned activities related to the teaching workforce.

Key education indicators

57. The EMIS system of the MOEYS reports against a set of selected education indicators that measure changes in gross admission rate (GAR), net admission rate (NAR), gross enrollment rate (GER), net enrollment rate (NER), transition rates, pupil-teacher ratio and pupil-class ratio. Within the annual EMIS bulletins there are additional reports cover other indicators including percentage of schools without drinking water and percentage of schools without toilets. Wherever appropriate the data is disaggregated into total population and female population and sub-

categories of disadvantage using set criteria 10. A summary of current performance against key indicators can be found in Appendix 10. Project indicators are identified in Appendix 1.

58. Despite its historical disadvantage, Cambodia has made considerable progress in providing education. In 2006-2007, the gross enrollment ratio (GER) at primary level was 123 percent and the Net enrollment ratio (NER) was 92.1 percent. This indicates a 13.5 percent increase against an NER of 77.8 percent in 1997-1998. The impressive growth in enrollments at the primary level has led to high rates of increase in enrollments at the lower and upper secondary levels. Since 1997-1998, LS enrollments have grown by 135 percent and US enrollments grew by 260 percent. But, despite the rapidly growing demand for secondary education, the vast majority of children of secondary school age are not enrolled in school. The GER at the lower and upper secondary level is 60 percent and 21.2 percent respectively. Corresponding figures for NER at the lower and upper secondary levels are 31.3 percent and 11.3 respectively. Such low levels of participation in secondary education are a severe constraint to Cambodia’s economic development and the Government faces a formidable challenge in expanding access beyond primary education.

59. These enrollment levels are further constrained by disparities based on gender, geographic location as well as social and economic background. From 1997-1998 to 2006-2007, the GER and NER for girls at the primary level increased from 81.2 percent and 72.4 percent to 119.3 percent and 91 percent respectively. At the lower secondary level, the GER and NER for girls are 54.5 percent and 33.1 percent respectively. Corresponding figures at the uppers secondary level are 15.3 percent and 9.9 percent. At the primary level, the differentials in net enrollment rates between urban and rural areas are not significant (93.2 percent and 92.2 percent). Similarly, rural urban differentials for gender are also not significant with marginally higher rates of net enrollment in rural areas (92.6 percent) than in urban areas (91.1 percent). However, the differences are marked in disadvantaged areas 11 where overall NER drops to 73.2 percent and for girls it is 70.6 percent. Mondolkiri and Ratnakiri have the lowest overall NER at 68.9 percent and 56.9 percent respectively. However, they also have the highest rates of GER at 202.9 percent and 163.1 percent respectively indicating overage enrollments of 66 percent and 65.1 percent respectively. Surprisingly, Mondolkiri has high transition rates to lower secondary (90.4 percent) while the corresponding figure for Ratnakiri is 72.6 percent. The two provinces, along with Odey Meanchey, have very high GER for girls at the primary level but among the lowest GER at the lower and uppers secondary level. They also have the lowest NER for girls at all levels of school education. However, in both provinces, the transition rates for girls at 83 and 83.2 percent are higher than the national average of 78.7 percent. In fact, among female students dropout rates reduce with each successive grade completed. The net enrollment rate of children at secondary education in ethnic minority and disadvantaged areas is much lower than the national average. Women have the lowest representation in the teaching force in the disadvantaged areas. Thus, while children in disadvantaged areas are least likely to have access to schools, a more critical examination of statistics indicates that the children who obtain access to schooling are likely to use the opportunity reasonably well.

External assistance to the education sector

10 A

11 A

(i)

disadvantaged school is a school with all of the following five conditions:

At least 50 percent of its rooms do not have a good roof; (ii) At least 50 percent of its rooms do not have a good floor; (iii) At least 50 percent of its rooms do not have good wall; (iv) Does not have drinking water supply; and (v) does not have latrine facilities

disadvantaged area is a location that has one of the following conditions: poor transport infrastructure, population density is less than 10 persons/km2 , regularly flooded areas and/or areas vulnerable to natural disasters, integrated areas and/or border areas, areas that have an insufficiency of all school levels.

60. Total external funding to the education sector for the period 2005–2010 is estimated at $327.6 million, with $97.2 million actually spent in 2005, $100.1 million in 2006 and $130.3 million projected for 2007–2010. The total funding is financed by 124 donor organizations through 324 outstanding projects. Of the total projected financing for the 2005–2010 period, 29 percent is expected to come from UN agencies, 26 percent from international NGOs, 15 percent from bilateral agencies, 8 percent from international organizations, 4 percent from local NGOs, 2 percent from research institutes and 17 percent from other sources. Although funding amount is aggregated, the ADB, the World Bank, the EC and the UN agencies are among the biggest donors to the country's education sector. Details are provided in Appendix 11. In terms of annual budget allocation and disbursement, 29.7 percent of total budget was actually disbursed in 2005, 30.5 percent estimated in 2006 and it is projected that the remaining will be disbursed in proportions that follow: 18.7 percent in 2007, 10.9 percent in 2008, 6.4 percent in 2009 and 3.8 percent in 2010. This projection has not taken into account further annual commitments (and disbursement) by the donor community to Cambodia at annual Donor Consultative Group Meetings.

61. With regard to budget by sub-sector, total 2005-2010 budget is allocated as follows: 34.2 percent for primary education quality and efficiency, 9.9 percent for non-formal education expansion, 8.3 percent for facility expansion; 6.8 percent for continuous teacher education; 6.6 percent for capacity building, 6.5 percent for higher education quality, efficiency and equitable access; 3.7 percent lower secondary education access, quality & efficiency; 3.4 percent for secondary scholarship for the poor; 3.3 percent for upper secondary education and equitable access; 2.9 percent for early childhood education, 1.9 percent for core instructional materials; 0.6 percent for strengthened monitoring systems; 0.6 percent for education service efficiency, 0.2 percent for youth and sport development and the remaining 10 percent is allocated for other sub-sectors. It is noted that allocated investment in (lower and upper) secondary education access, quality and efficiency accounts for just 7.1 percent of total budget versus that of 34.2 percent for primary education quality and efficiency. In this regard, more funding should be earmarked to improve the quality of secondary education due to its significant social returns from this sub-sector. To this end, ADB's focus in the EQEP is well justified.

62. By geography, donor budget for 2005-2010 is distributed in a balanced proportion taking into account of population, poverty severity and other economic and demographic indicators. The distribution is also observed to be balanced between non-disadvantaged and disadvantaged provinces. It is indicated that budget for Phnom Penh accounts for 18 percent of total 2005-2010 budget. However, this high proportion is due to the fact that allocations to line ministries are aggregated in this category, rather than Phnom Penh as a normal administrative unit.

63. MOEYS has endorsed the national Education Strategic Plan (ESP) 2006-2010. The required funding to successfully achieve the ESP objectives is estimated at US$ 864 million for the 2006-2010 period. Annual projected funding required is as follows: US$ 140.7 million (16.3 percent) for 2006, US$ 162.4 million (18.8 percent) for 2007, US$ 172.9 million (20 percent) for 2008; US$ 188 million (21.8 percent) for 2009 and US$ 200 million (23.1 percent) for 2010. Although Cambodia's economic growth prospect is bright with high projected GDP growth rate, public revenue, mainly from tax collection, will not be capable of funding the implementation of ESP 2006-2010. Continued donor support is needed and ADB grant under the EQEP will significantly support the ESP implementation process.

64. The World Bank and ADB are the two major funding agencies and, from 2002–2007, will together account for 42 percent of the total project financing for education. Other funding agencies supporting education include European Commission (EC), Japan International Cooperation Agency (JICA), Swedish International Development

Cooperation Agency (SIDA), United Nations Populations Fund (UNFPA), United Nations Children's Fund (UNICEF), and United States Agency for International Development (USAID). The World Bank’s support has been mainly targeted at primary and lower secondary education. EC has provided budgetary support with technical assistance to strengthen public financial management. USAid has supported curriculum development at the primary level. JICA support has targeted teacher training, and curriculum development for science and mathematics. Key projects delivering external assistance are summarised in Appendix 12.

4.0 REVIEW OF ISSUES AND OPPORTUNITIES

65. Issues raised in the ADB TA Report 12 set the frame for various aspects of the review. The report noted the general progress made in the education sector in recent years and the considerable progress made in the last 5 years in implementing education sector planning and reforms. Mentioned in the report was the reduction in cost barriers, the effective enrolment campaigns, the introduction of school operating budgets and remedial classes, the substantial increases in the Government’s recurrent spending on education and the growth of policy-led support. The report identified areas where attention has shifted to strengthening the quality and efficiency of the education sector. Based on the issues listed in the report this section reviews: institutional development; teacher education; curriculum; textbooks and instructional materials; assessment and examination systems; information and communication systems; secondary schooling; poverty, gender and inclusion; and capacity building.

Institutional development

66. An earlier section described the organizational outline of the MOEYS. There are established high-level positions of Minister, Secretary of State and Under Secretary of State overseeing six structures at the directorate level (Administration and Finance, Education, Higher Education, Youth and Sport, Inspectorate General plus an EFA Secretariat). Below these directorates, inspectorate and secretariat level structures, are a number of supporting technical departments and provincial and district structures (Appendix 8).

67. Sub-Decree 21 on the Organization and Functioning of the Ministry, Youth and Sport covers details of the functions of each directorate and department. The MOEYS Legislative Unit has been responsible for revising the Sub-decree and has provided a draft for discussion which was circulated to line departments for comment. One of the purposes of the draft Sub-decree is said to be clarification of roles and reduction of over-lapping functions but no mention has been made of clarifying links that enable directorates and departments to work together on areas of common responsibilities or interests. It is also unclear as to what attention has been given to complying with the provisions of the Strategic Framework for Decentralization and Deconcentration while drafting the Sub-decree. It appears from review and analysis that there is some mismatch between functions and structures of the MOEYS and there is a need for a review that covers the strategic management, pedagogy and administrative functions of the MOEYS and the structures that are currently in place to deal with these functions. There appears to be good case for recommending that a comprehensive review of MOEYS, which considers the decentralization and deconcentration strategy, be included in the project design to help underpin any future development of Human Resource

Development Plans.

68. The MOEYS organization chart shows the Department of Teacher Training (TTD) located in the Directorate of Higher Education (DGE). However, in practice it appears to be located in the DGE. This is reflected in the draft Sub-decree 21 where it is included as a seventh department within the Directorate of General Education. The TTD has overall responsibility for pre-service teacher training of primary and lower secondary school teachers and school managers. In-service teacher training for primary and lower secondary school teachers and managers is coordinated between the TTD, Primary Education Department (PED), General Secondary Education Department (DGSE) and the Pedagogic Research Department (PRD). The National Institute of Education (NIE) has overall responsibility for pre-service and in-service teacher training of upper secondary school teachers and school managers. The TTD provides technical, policy and management support to the six Regional Teacher Training Centers (RTTC) and 18 Provincial Teacher Training Centers (PTTC). Appendix 13 includes a table showing the distribution of RTTCs and PTTCs by province. Provinces with neither RTTC nor PTTC will utilize the recently built Resource Centers (RC) as a mini-PTTC in accordance with the ESSP 2006-2010 to provide a facility for the retraining of basic cycle teachers. A pre-school teacher training institution is located in Phnom Penh. Staff from PED, DGSE, PRD and TTD deliver in-service teacher training. An alternative source of trainers, proposed by TTC and Provincial Office of Education (POE) Directors, was to select experienced teachers from schools who demonstrate good classroom practice, for example Technical Group Leaders (TGLs) 13 .

69. Other organizational structures supporting the professional work and management of teachers such as the PRD and the Examinations Office of the DGSE are reviewed below in the curriculum and assessment sections and identify interventions that will build capacity and assist in the development of the institutions. Special attention has been given to the role of the NIE with the exploration of a potential wider role in supporting the quality of education.

70. There are a number of current or planned initiatives that have objectives related to the support of NIE. Two should be mentioned here. MOEYS/JICA have a project under preparation related to the training of upper secondary science teachers and MOEYS/SIDA/UNICEF are considering a management skills enhancement project. Currently the mandate of the NIE covers a one-year training program to provide upper secondary teachers and the training of education managers and administrators. There is considerable interest in the future development of NIE either within its current mandate or in a revised mandate. The future of NIE has been looked at carefully over the past few years and a number of options have been discussed relating to the need for a more comprehensive approach to education planning and management training. One option considered was a separate autonomous national institution with international links, which would allow NIE to concentrate on its teacher-training mandate. This option does not appear to have been accepted. There remains considerable potential for developing the NIE into an institute that bridges the current gap between the practitioners of education (in schools and teacher training institutions) and the policy makers and managers of education services (in the MOEYS and its decentralized structures, POE and DOE).

71. It can be argued that the country requires an institution that focuses on preparing policy-linked advice for decision-makers at all levels based on systematic research and analysis. As the institution develops the need for external technical assistance in policy development would decline. The same institution could provide a base for analytic reviews as required by the proposed National Council for Education and

13 In LSS and USS secondary schools TGLs are experienced teachers responsible for subject areas.

serve as a repository for documents that describe, analyze and report on the education sector. Consideration could also be given to renaming the institution as the National Institute for Educational Development (NIED). Decisions would have to be made on the focus of the NIED. The NIED could include all or some of the following in its mandate: research and policy development, leadership, management and administration training, professional development of upper secondary teachers.

72. Among the issues relating to quality improvement at upper secondary school level is that in remote areas schools cannot offer enough subjects and there are not enough teachers, which results in schools opening but students not attending because they do not wish to study under such conditions. There is also a need to ensure a future supply of upper secondary teachers. According to the projections given earlier, demand for upper secondary teachers will rise rapidly over the next few years as the required number of students increases and the plan to build additional secondary schools is implemented. Estimates suggest that the current capacity of the NIE will be inadequate for future supply in the medium term. Yet to be verified is how to set targets to secure an adequate number of trainees undergoing upper secondary teacher training in all the subjects required by the new USS curriculum. Re-location of some USS teacher training through enhancing the capacity and competencies of the RTTCs through a careful structured incremental program may be required. Shift to regional centers will mean that training will take place closer to the homes of students from remote and disadvantaged areas.

73. The 6 RTTCs located in Phnom Penh and five other provinces (Kampong Cham, Battambang, Takeo, Kandal and Prey Veng) provide 2-year programs to train lower secondary teachers. There are short-term responses to supplying lower secondary teachers through the BETT program, more sustainable solutions also need to be developed for the supply of lower secondary teachers. There is an identified need to improve the living environment of dormitories, cooking facilities and toilets, in addition to expanding facilities that relate to science, ICT and multi-media.

74. The PTTCs located throughout the country provide 2-year programs to train primary teachers. With their changing role the opportunity should be taken to consolidate the development of PTTCs into institutions responsible for training Basic Education teachers. However the respective roles of PTTCs and RTTCs would need to be clear and the current activities to merge some RTTCs and PTTCs examined carefully.

Teacher education

75. The issues relating to quality improvement in teacher training and teacher professional development are identified as: (i) strengthening the capacity of teacher training institutions to improve teacher skills and competencies; (ii) strengthening inservice teacher training to support quality improvement in teachers’ classroom practice. The broad teacher professional development issues to be addressed have been identified from the TNA 14 as: upgrading of teacher professional qualifications, motivation of teachers and trainers relating to basic living conditions and terms of employment. The ESSP prioritizes a TTC staff development program and a responsive pre-service and in-service teacher training program to enhance the capacity of secondary school teachers and trainers. These programs are linked to the planned introduction of Teacher Standards, Teacher Training Standards and improved systems of performance monitoring. A system of formal certification is proposed in the ESSP as a foundation for the development of the national teacher education system. To achieve this the TTD MOEYS will need to establish criteria and procedures for assessment of competencies and certification of courses that teachers and trainers attend. The information will be required by the Department of

Personnel MOEYS in relation to management of the performance monitoring and EMIS systems.

76. The key areas of skills and competencies requiring strengthening through teacher professional development have been identified through the Training Needs Analysis conducted in the review and analysis phase. They are: institutional management skills, skills in developing and using ICT multimedia technology, English language skills of teachers and trainers, upgrading of under-qualified teachers in secondary schools.

77. It is essential that all teacher training programs are planned and coordinated by MOEYS to ensure (i) that duplication with other development initiatives is avoided, (ii) that future planned activities complement and strengthen current interventions and (iii) that the system has the capacity to productively absorb the training activities on the scale planned.

Curriculum

78. A process of developing and introducing new curricula is underway throughout the school system. To this end, MOEYS has an approved policy and master plan for curriculum development, 2005-2009. The PRD MOEYS is responsible for curriculum development and has received support from USAID at basic education level (all subjects grades 1-9) and from JICA in Mathematics and three Science subjects at upper secondary level (grades 10-12). To date new curricula have been developed for lower secondary Khmer, mathematics, social studies and sciences and for upper secondary mathematics, biology, chemistry and physics.

79. Development of curricula not supported directly, financially and technically, by development partners has been slower to implement. This is partly attributable to the need for technical support to inform and guide the process, and partly to the competing demands on staff time in the context of low salaries where field-based activities and associated incentives are more rewarding than desk-based work.

80. PRD would benefit from technical assistance to support the conceptualization, design and development of the outstanding curricula and in particular in areas which are less familiar than the traditional school subjects. As well as drawing on consultancy support in these areas, PRD may consider a strategy of acquiring existing curricula and courses. Such courses might be adopted or adapted to a Cambodian context from materials that are in use in the region. This may particularly be the case for foreign languages (English and French) and some of the proposed Elective Vocational Education Program (EVEP) subjects such as tourism and ICT.

81. There is a tension and a balance to be struck in the area of curriculum development between the sometimes competing objectives of developing institutional capacity and ensuring ownership, on the one hand and achieving rapid implementation and a quality product, on the other hand. In this instance, the use of technical expertise, knowledge and experience which is accessible through technical assistance will be central in how MOEYS and PRD strike the most appropriate and effective balance to achieve the desired outcome.

82. As well as the development of its professional curriculum development capacity PRD will also benefit from ensuring that there is appropriate ICT equipment and operator capacity to ensure it is equipped to carry out its role. This includes an understanding of maintenance, and more specifically developing an understanding of the educational possibilities and limitations, the management and cost issues and other practicalities of developing curriculum materials in electronic media.

83. Whilst MOEYS benefits from assistance from multiple development partners, it is important that such support is coordinated and complementary. Thus curriculum development support provided through this ADB grant should be in the context of and in collaboration with others. The recent past has included JICA and USAID, whilst French government assistance may support the development of French language curriculum and textbooks.

84. Future systems should require PRD to proceed with developing curricula with less direct intervention. It should build on the experience gained from the USAID funded Basic Education Project (BEP) but technical assistance should focus on provisions to build the capacity of PRD curriculum writers to enhance their roles in curriculum writing and the management of the process of developing textbook, teacher’s guides and other instructional materials.

85. The schedule of developing and introducing the new curricula to schools is a matter for the implementing TA to agree with MOEYS. Whilst the Master Plan for Curriculum Development includes a schedule, this may be modified to achieve the best effect. Various permutations have been explored. There are several dimensions to optimizing the phasing of this work relating to institutional capacity. The dimensions include: (i) curriculum coherence across years; (ii) efficient and effective curriculum development; (iii) orientation of schools and teachers to the new curriculum; (iv) minimizing the disruption to students and teachers during introduction of the new curriculum; (v) the implications for preparing learning materials to support the new curriculum; and (vi) the schedule for the next major curriculum review.

86. The means of dissemination of the curriculum is subject to various possibilities. The modalities should be linked to one or more other areas of development of teachers, teacher trainers and education managers, such as in-service and preservice teacher education and training in new assessment methods.

Textbooks and instructional materials

87. MOEYS stated policy is to ensure the adequate provision of core instructional materials on a nationwide basis and to encourage the process of widening choice (and therefore quality) in the provision of textbooks by opening the textbook market to multi-publisher supply. This will allow decentralization and more flexibility in the purchase of core learning materials at the school-level with resulting gain in quality and cost benefits for MOEYS.

88. The introduction of the new curricula has given an opportunity to bring about this reform. The basic education curricula (grades 1-9) have been completed with the exception of foreign languages under the USAID funded BEP. JICA has supported curricula in mathematics (grades 9-12) and secondary education curricula in physics, chemistry and biology. JICA was supporting the development of textbooks (TXT) and teacher's manuals (TM) in these subjects but only one mathematics book was developed before their support was withdrawn.

89. Capacity building will be concentrated in the PRD to establish it under its new role as MOEYS' supervisory authority for all learning materials

Assessment and examination systems

90. The analysis of assessment and examinations in Cambodia revealed a system that was clear and in many ways well-organized but required significant strengthening. Reforms in assessment and examinations are necessary to support the national curriculum reform and ensure valid and reliable measurement of student achievement, which will in turn contribute significantly to quality assurance in

education.

91. At the moment the assessment and examinations system is not clearly standardsbased and lacks coherence. In future, there will be assessment against curriculum standards in grades 3, 6 and 9. To complete this system, curriculum standards (and also grade criteria) should be developed for grade 12. There should be a clear relationship between school-based assessment (SBA) in grades 1 and 2 and assessment of curriculum standards in grade 3 (and similarly for subsequent grades up to grade 9) so that there is coherent reporting on student progress to students and parents. The respective roles of – and relationship between –assessment and reporting against national standards and semester examinations should be clarified. A related issue is how to reconcile the standards-based assessment approach with the current grading system used in SBA/semester examinations. The new system of national assessments (standardized tests at grades 3, 6 and 9 in Khmer and Mathematics applied to a sample of the student population) should apply the curriculum standards by using similar items to those used in schools to assess these curriculum standards.

92. The national policy on assessment should also: address quality assurance of internal assessment, e.g. through external moderation of school assessments by the PRD Research and Evaluation Office; and ensure equitable access to assessment for students with disabilities

93. The Examinations Office currently lacks capacity. There should be a phased strengthening of its capacity both through training and introduction of ICT-led improvements to management of assessment, administration and record keeping. Computer-generated and examinations and computer-based marking can improve validity and reliability, improve examination security and – in the long term – reduce costs.

94. Teachers will need to be trained and supported in the development of assessment tools and question papers that assess students against curriculum standards in grades 3, 6 and 9 in a valid and reliable way. The SBA in other grades will need to be related to the assessment against curriculum standards in grades 3, 6 and 9, so that there is continuity and progression in the assessment of students and reporting to parents and students. The training of teachers would be greatly facilitated by the development and distribution of exemplar assessment tasks and question papers. The process would also benefit from an approach in which teachers were able to get access to expert support at a local level.

95. Capacity needs to be developed at regional and school level to implement a systematic program of training and support.

Information and communication systems

96. ICT, ranges across many elements being reviewed. Correctly introduced, strengthening ICT within MOEYS will have a qualitative impact in each one. The capacity building falls into three sets of activities: ICT for education management, ICT for teacher training and classroom support; and ICT in the classroom.

97. It is proposed that a number of learning centers in selected secondary schools are set up. The measure of the success of this is clearly going to be the impact that it has on the effectiveness of learning and teaching and the benefit to students. All staff in each institution should receive basic training to enable them to make use of the facilities for email, internet, word processing and spreadsheets. These learning centers should form a network of ICT training schools, fully equipped to provide training to teachers from other schools as those schools receive their equipment. Ultimately, over a defined (but lengthy) time period, it should be possible to

demonstrate the improvements that ICT can bring in rising standards. Thought should be given, at the outset, to ensuring that performance measures are in place or planned and statistics upon these measures are gathered annually so that improvement over time can be clearly demonstrated.

98. Wherever ICT has been introduced, there has been evidence of resistance from teachers. ICT for teacher training and classroom support requires major changes in behaviors and pedagogies. The proposed project should will provide institutionbased training and development programs to effect a qualitative change under the Teacher Professional Development component. Specialized training should focus on the use of the facilities to enhance learning and teaching. The model proposed should deliver training to selected ICT master teachers; should mentor each set of teachers; should make regular site visits to support their development; should monitor and evaluate to support disseminating the activities to other teachers in their institution.

99. Management Information Systems (MIS) remain weak in MOEYS. Mechanisms for data gathering, retention and manipulation are minimal at the point of collection. Unless specifically designed to do so, one MIS system often does not have the capacity to inter-connect with another, not only because the basic data sets are incompatible but also because the staff lack the analytical skills. This is the case with current MIS systems. Where they exist basic data sets are held within systems, which are associated with a specific entry. Currently MOEYS has a number of information systems. Key systems are an Education Management Information System (EMIS) centered in the MOEYS Department of Planning, a Financial MIS (FMIS) in the Department of Finance and a Human Resources MIS (HRMIS) in Department of the Personnel. The EMIS system, does not inter-relate with the HRMIS system or the FMIS. HRMIS is being supported by UNICEF and the European Union (EU) and EMIS by UNICEF and Sida). The MOEYS has asked for support for the FMIS. It has identified equipment that is required and asked for capacity building in the field of data analysis. Support should be provided for the development of an over-arching MIS System and for improving the data collection, processing and analysis. Other systems exist or are planned relating to school construction, non-formal education, higher education and the Information and ASEAN Affairs Department.

Secondary schooling

100. A Secondary Education Development Plan being prepared by the Department of General Secondary Education identifies a number of improvement areas underpinned by a number of strategies to enhance the quality of secondary education. This plan has a focus on providing a context for the construction of secondary schools under ESDP 11. There is an awareness that a comprehensive plan would cover five broad areas: enhancing the skills of the secondary education workforce; strengthening the secondary school support structures with MOEYS; ongoing secondary school improvement; supporting secondary teaching and learning and enhancing facilities, resources and funding for secondary education. Currently there is inadequate resourcing for a comprehensive Secondary Education Development Plan.

101. To improve quality, five components are needed: building enough classrooms, providing enough qualified teachers in all subjects, providing enough materials for teaching and learning, providing a special budget to improve the quality of living for teachers, especially in more remote locations, providing opportunities for professional development

102. The project should address issues of quality improvement, with the primary focus on specific interventions targeted at secondary schooling. The immediate shortage

of qualified teachers at lower secondary school level is being addressed through the emergency Basic Education Teacher Training (BETT) program which upgrades primary school teachers to lower secondary school standard. A more detailed projection for teacher supply at upper secondary school level than that presented in the earlier 'teacher demand projections' section of this report is required. A detailed projection will assist in planning to ensure that, as increasing numbers of students complete basic education by graduating from grade 9, there are sufficient teachers trained to meet the increasing demand at upper secondary level. This projection could be included as part of the Secondary Education Development Plan discussed later.

103. The new upper secondary school curriculum includes both compulsory and elective subjects and as described earlier it is difficult at the moment to accurately estimate of the number of teachers that will be required for each specialist subject. In addition there is the challenge of ensuring that students in the more disadvantaged districts and provinces benefit from the expansion of access to secondary school combined with delivery of improved quality in teaching and learning.

104. A system of Technical Groups (TG) already functions in secondary schools and provides an opportunity for professional development and improvement in quality of teaching and learning. An evaluation of the functioning of this school-based teacher network would enable the analysis of ways in which teacher competencies are enhanced and would also identify weaknesses in the system. For example, some TGL who are required to complete the final stage in the process of cascade training, may have insufficient experience or training skills to be able to train other teachers on the staff effectively. There may be little incentive or motivation either from the TGL or from other staff towards the TGL for the role to be effective and for teacher professional development to be sustainable through this mechanism. At secondary level it is proposed that opportunities are explored to strengthen institutional links, to establish a network to develop and sustain teacher competencies.

105. Alternative strategies can be explored to identify ways in which networking of secondary schools can be used to strengthen teacher capacities through specific professional development activities. For example a local subject group may be able to secure a small budget to enable several meetings to be convened each year at each school in turn. Meetings could focus on new initiatives: such as curriculum change, teacher performance monitoring and changes to the examination system and other meetings could be used to share good practice and to solve challenges which teachers face in the classroom. This level of networking is particularly relevant to teachers in schools that are relatively isolated outside a main urban centre. Opportunities to visit other schools and to meet as a professional group of teachers, motivate teachers and raises professional status at a relatively small cost. Such a mechanism provides a conduit for dissemination of new methodology and also provides a forum for performance monitoring, decentralized to a district level.

106. Some specific issues relating to quality improvement at upper secondary school level have been raised. In remote areas schools cannot offer enough subjects and there are not enough teachers and when schools open students do not wish to study because there are not enough teachers.

107. The possible interventions under the headings of teacher professional development, performance monitoring, gender and IT are all relevant and applicable to improvement in quality of secondary education teaching and teacher training. Additional possible interventions, which are more specific to quality improvement in secondary education, concern development of school networks to give an organizational structure to school improvement, living conditions and

physical facilities for practical activities.

108. At secondary level it is proposed that opportunities are explored to strengthen links between secondary schools including: grouping of schools to establish a network to develop and sustain teacher competencies through professional development activities. In some schools provide a facility for practical activities in support of the implementation of the new upper secondary curriculum. Provide training and equipment to upper secondary schools and later to lower secondary schools, to enable the effective implementation of the Science and IT curriculum.

109. There are various models of improvement planning being discussed in the different departments of MOEYS. Support for a model that focuses on the quality of teaching and learning and raising student attainment is proposed.

110. Living conditions become a higher priority in lower secondary and upper secondary schools in remote locations where students and teachers have to board. In addition to a policy of home postings, provision of accommodation or an equivalent incentive payment is essential to enhance the quality of education by attracting teachers to remote and disadvantaged areas.

Poverty, gender and inclusion

111. MOEYS recently developed a draft gender policy for education in Cambodia, set a Gender Mainstreaming Strategy in Education (GMSE) for 2006-2010 and established gender working groups at ministry and local (province, district and school) level. These activities are a reflection of broader RGC initiatives to tackle gender inequality in the education sector and to address gender inequalities in other sectors through gender-sensitive education. The policy lays out important strategies and instruments to deal with the inequalities in education at primary, lower secondary and upper secondary levels. A range of strategies has been set to strike at the root causes of gender inequalities in education. The GMSE for 2006-2010 sets specific objectives. The strategy for 2006-2010 is based on the gains and the gaps of a previous GMSE (2002-2006). The main thrusts are to (i) increase women’s participation in the management and delivery of educational services at all levels and (ii) facilitate the creation of positive social attitudes and enhance the value of girls’ education and equal partnership between women and men in Cambodian society, especially among parents and community leaders.

112. It is too early to make any critical comment on the gender policy, as it has not yet been endorsed officially. Discussions with key staff at provincial education offices about their involvement in implementing gender policy in education and their knowledge of GMSE lead to the following concerns about the effectiveness and efficiency of its application: (i) Local level key staff of MOEYS are as yet not informed about the gender policy. Most provinces were not involved in the process of development of the policy. As a result the staff and the local gender working groups have little or shallow knowledge on gender in relation to education. Contrarily, the MOEYS requires them to work as gender advocates, specialists and advisers in the GMSE. (ii) The implementation of gender policy and the GMSE is largely dependent on the improvement of the capacity of these key staff at local level. Unless they gain hands-on skills in how to conduct gender analysis and incorporate gender equality strategies in education, it is unlikely that the GMSE will bring any substantial achievement of gender equality in education. (iii) MOEYS needs to give priority and emphasis to building the gender capacity of key staff at the local level as well as the gender working group at Ministerial level.

113. Cambodia, with a population of 14 million and a per capita income of US$ 385, is

one of the poorest countries in the world 15. Although government and other stakeholders have made positive strides towards full and equal access of girls to education, gender disparity still persists widely in education in terms of enrollment, retention and completion of study at primary, lower secondary and upper secondary level education. Boys and girls start schooling on an equal footing in primary education but the dropout rate among girl students starts to go up as they progress through the grades, particularly after completion of primary education.

114. Poverty is the overriding reason for wider gender disparities in education in terms of enrollment and illiteracy. Among female students dropout rates reduce with each successive grade completed. Although direct costs of education are the same for boys and girls, parents generally perceive higher opportunity costs and lower benefits from educating daughters. Opportunity costs increase with the increase in age of girls, especially when they reach an age officially acceptable for entry into the formal job market. Instead of allowing their daughters to continue their study until lower and upper secondary levels, parents send their daughters to earn money for themselves and the family. Poor people seemingly adhere to the traditional gender norms that women should stay at home and have negative attitudes towards girls’ higher education.

115. The net enrollment rate of children at secondary education in ethnic minority and disadvantaged areas is much lower than the national average. Along with poverty, the distant location of schools, language barriers, disproportionate teacher-student ratios and inappropriate instructional materials are the major factors that keep children of ethnic minority groups away from school. These factors affect girls of ethnic minorities more than boys. There are few schools, particularly secondary schools, within or near ethnic minority groups. Officially Khmer is the only language of instruction in the class. Since the children of ethnic groups use their own language in their daily affairs, it is difficult for them on starting school to follow Khmer in the classroom where it is used as the language of instruction. The ratio of students to teachers in ethnic minority and disadvantaged areas is very high. This is because teachers from cities or other locations are reluctant to work in disadvantaged and remote areas. Potentially this can be addressed through enhancing enrollment of teacher trainees from ethnic minority and disadvantaged areas at NIE and RTTCs. Similarly, the existing instructional materials used by teachers at secondary school do not help to equalize access of children of ethnic minorities and disadvantaged areas to education. With these difficulties many of the children of ethnic minorities and other disadvantaged groups abandon school before or immediately after the completion of their primary level education.

116. The overwhelming gender issue in MOEYS with relation to staff, teacher and trainer development is that female staff are less likely to attend capacity building programs, training, workshop, do research and similar activities even if they are given the opportunity. They are less likely to attend any capacity development programme because: (i) when they are asked to attend in-service training, particularly residential training away from home, they think about difficulties for the family in their absence; (ii) some female staff are reluctant to attend if none of their fellow female staff are selected, to attend alone is socially difficult; (iii) some female staff are scared to attend any training or workshop, they consider themselves below standard; and (iv) women rarely hold any decision-making positions at MOEYS, the DOEs and other educational institutions at local level. Therefore, female staff rarely have the opportunity to play any role in the designing and implementation of staff development programmes.

117. Disability is an area for inclusion in education, which is addressed at present by a range of initiatives, mainly special schools and services provided by NGOs, rather

than as a provision across the national education system. Although highly significant in themselves and addressing the needs of their participating children, such provisions are limited. Within the MOEYS, the Special Education Office is housed within the PED but has very limited resources. Explicit reference to disability in the ESSP is restricted . At primary level, the CFS programme aims to make education inclusive of children with special needs. At secondary education level, there is no clearly identified provision for disabled students, whilst at higher education level, students with disabilities are included as target beneficiaries of scholarship support. In terms of education, this implies taking steps to maximize disabled students’ access to the standard national curriculum. Suitable vocational education and training in life skills are also areas where special consideration for disabled learners is seen as particularly desirable. Areas to address include physical facilities, instructional media, methods of teaching, in-service and pre-service teacher training, assessment, ICT, inspection and financial support (through scholarships). Promoting positive images of disabled people, early and diagnostic intervention to identify and address disability, development of disability awareness and the inclusion of disability into EMIS and school mapping, would all help to mainstream the disabled.

118. Opportunities to promote equity include: dissemination of the MOEYS gender mainstreaming policy and strategy among the staff of MOEYS at central and local level; improving capacity of key staff of MOEYS at different levels to implement strategy and policy; scholarships for girls and children of disadvantaged areas at upper secondary education, scholarships for female and other teacher trainees at NIE and RTTC; building dormitories for female students; providing training on gender and ethnic minority issues to the writers of instructional materials; integrating the issue of gender equality and ethnic minority into instructional materials and both pre-service and in-service teacher training programs at secondary level and the publication of materials for use by teachers at the secondary level that discuss equitable access of children from disadvantaged areas.

Capacity building

119. A number of processes are well recognized as ways of approaching organizational and institutional capacity building. It is important that an appropriate mix of processes is selected to achieve the specific outcomes. It is also important to ensure the building of capacity in individuals is clearly aligned to organizational outcomes and priorities. Attendance on courses and participation in overseas programs should be on an organizational needs basis and on-the-job instruction should be directly relevant to a person’s role. It is important to remember that capacity building takes time, is often a two way process and has to be relevant for the individual counterpart, counterpart groups and counterpart institutions. During consultations a number of senior officers at the MOEYS mentioned that it was difficult to get a clear picture of capacity building and how projects contributed to enhancing competencies and ownership. Capacity development will be an underlying theme in the design and implementation of the project. During the design process three key elements will be considered: human capacity development, institutional strengthening and development of information flows and networks. Clear, measurable indicators for progress with capacity building will be required.

Lessons learned

120. Valuable lessons have been drawn from the experience gained in implementing policies and from projects and programs that have supported the education sector in the past. These include: (i) significant improvements in access to primary schooling puts great pressure on secondary education which now needs attention: (ii) emphasis on expansion needs to be matched by emphasis on quality: (iii) seminarbased, cascade training approaches have limitations and on-the-job training with access to regular feed-back is more effective; (iv) an overarching organizational

framework for in-service teacher training that is linked to the pre-service teacher training institutions is needed; (v) gender awareness and equal opportunities activities need to be integrated in all relevant activities; (vi) preferences at the school level need to be recognized and addressed in supplying physical facilities, equipment and books if these inputs are to improve the quality of education; (vii) provision of facilities needs careful planning in order to ensure optimum utilization of resources; (viii) monitoring and evaluation capacity developed from scratch by a new project cannot start to monitor that project from the beginning so it is necessary to draw on system data that is disaggregated to institutional level; (ix) institution building needs flexible inputs and a good analysis of institutional needs; (x) professional development activities must be specific in terms of intended outputs, competencies, certification and career development opportunities; and (xi) adequate technical needs to be provided for strengthening capacity and experts need to work very closely with counterparts for knowledge and skills transfer.

Summary of the review

121. The ADB TA-4823 CAM Interim Report prepared in February 2007 outlined a number of proposed interventions based on the review and analysis of areas identified in the PPTA terms of reference. The Interim Report was presented to the ADB TA-4823 CAM Task Force and Steering Committee and the proposed interventions were accepted as the basis of future planning and refinement. The proposed interventions covered seven areas: professional development of teachers, curriculum and instructional materials, assessment and examinations, information and communication technology, secondary schools, teacher development policy and institutional development.

122. Teacher professional development proposed interventions linked together provincial level and school level teacher development programs, a review of the pre-service curricula, content and methodology, the possibility of a non-formal distance education program, implementation of the Gender Mainstreaming Policy, management of the learning environment and ICT and English Language.

123. Curriculum and instructional materials proposed interventions were organised as four sub-sets: curriculum, curriculum coordination, instructional materials and teacher development and distributions. Proposed interventions covering assessment and examinations included supporting the development of a policy on assessment and examinations, support for standards-based assessment at grades 3, 6 and 9 and support for standards-based assessment at grade 12.

124. Four clusters of possible interventions were proposed in the area of ICT: national infrastructure and software issues, school equipment provision, training and using television and radio.

125. The preparation of a comprehensive secondary education development plan to underpin other developments in the secondary education sub-sector led the proposed interventions to strengthen secondary education. Other key proposals were development of school development networks, quality improvement planning for secondary schools and ways of dealing with improving the living conditions of students and teachers.

126. The remaining proposed interventions covered the development of a teacher education and teacher management policy framework and institutional development.

127. Not all proposed interventions have been included in the design presented in the following section. Others have been modified or merged as a result of a participatory workshop that developed the first draft of a DMF. The two-day DMF Workshop in May 2007 brought together MOEYS staff from the relevant line departments with

some colleagues from the provinces. Also participating were representatives from other projects in the education sector. Groups based on the TWGs worked through the steps of preparing a DMF. The DMF Workshop provided draft statements describing the impact (goal) of the project, the outcome (purpose) of the project, seven possible impact statements and seven possible outcome statements which provided the basis of the statements given in following paragraphs. From the proposed interventions contained in the Interim Report 32 possible outputs were identified and activities to achieve the outputs suggested. For each output a number of targets and indicators were identified with assumptions and risks. The task was completed with a list of required inputs.

128. Following the DMF Workshop the first draft was scrutinized and further developed through further meetings: (i) with TWGs and individual members of the TWGs; (ii) with the TA-4823 CAM Task Force meeting in early June 2007; (iii) a second national workshop and (iv) a final meeting of the TA-4823 CAM Steering Committee.

5.0 THE PROPOSED PROJECT DESIGN AND MONITORING FRAMEWORK

Impact, outcome and outputs

129. The impact of the project will be an increased number of educated and skilled people from all sections of Cambodia’s population. The Project will achieve this by carefully targeting support for strengthening capacity of institutions and agencies responsible for delivery of quality education. This includes examining the capacity of effectiveness of MOEYS’ organizational structure, supporting capacity building of NIE. And strengthening and integrating the management information systems. Recognizing the critical role teachers play in education quality, the Project will provide extensive support for improving teacher quality and management, including upgrading facilities of the teacher training institutions and competencies of teacher trainers. The quality of secondary education will be improved through several initiatives that will strengthen secondary school management, upgrade facilities including laboratories and libraries, provide equipment including ICT and textbooks, and improve secondary curriculum, assessment and examinations.

130. The Project outcome will be improved quality and equity of education in Cambodia with more effective secondary education, teacher training and education management systems. There are 20 outputs planned, clustered in 3 components: education system management and development, teacher professional development and strengthening secondary education.

Special features

131. Three special features are integrated into the three components: ICT, capacity building and broad interventions related to gender, poverty and ethnic minority representation. Additional analysis is contained in Appendices 13, 14 and 15

COMPONENT 1 EDUCATION SYSTEM MANAGEMENT AND DEVELOPMENT

132. The objective of this component is to strengthen institutional capacity of MOEYS for more efficient management and delivery of education services through achieving the following outputs.

Output 1.1: Education Law disseminated

133. The draft Education law is under submission to the National Assembly and is expected to be approved by end 2007. The Project will support dissemination of the law upon its adoption by the National Assembly through distribution of printed copies of the Law to schools, district and provincial offices and other relevant stakeholders. A poster, specially designed for display in schools and other relevant public places, will also be distributed to create wider awareness of the provisions of the law. A national workshop will be conducted for senior national and provincial officials of MOEYS and other key ministries to familiarize them with the provision of the education law.

Output 1.2: Policy framework for teacher education and teacher management developed

134. The policy framework will provide a clear expression of an agreed policy structure that covers both teacher education and teacher management. A comprehensive integrated policy document is required to support many planned activities related to the teaching workforce. The comprehensive teacher education policy framework will take in current and planned initiatives, map out and integrate policies and strategies related to teacher recruitment, deployment, qualifications, professional development and career growth. The teacher education policy framework will encompass five strategic areas: management of the teacher education system; teacher education methodology; a system of continuing professional development; teacher recruitment and retention; and improved salaries and incentives for teachers.

Output

1.3: The organization and functions of the MOEYS at central, provincial, district and school level reviewed and agreed upon

135. The comprehensive review of MOEYS that is planned will consider the changing role that will result from the implementation of the decentralization and deconcentration strategy and help underpin any future preparation of a human resource development plan. The review will look at the strategic management, pedagogic and administrative functions of MOEYS, the internal structure of the departments and address problems of coordination, communication, overlap and linkage by looking at offices dealing with information systems, offices and staffing. The review will also include the organization and functions of the provincial and district level offices and of the teacher education institutions. The review will pay some attention to the DGSE considering its important role in implementing some of the component outputs. This output will provide a basis for improving the delivery of education services in Cambodia.

Output 1.4: Strengthened National Institute of Education

136. The current mandate of the NIE covers a one-year training program to provide upper secondary teachers and the training of education managers and administrators. This output, complementing other interventions will strengthen the NIE, developing it into an institution capable of providing leadership for the education sector. The NIE of the future will bridge the current gap between the practitioners of education (in schools and teacher training institutions) and the policy makers and managers of education services (in the MOEYS and its decentralized provincial and district education offices). The output will be achieved through activities that prepare a participatory institutional development plan with a clear vision for the next 10 years, an education research capacity, the enhancement of staff professional capacity, the development of management and planning training programs and distance support to build professional capacity of upper secondary teachers

Output 1.5: Information systems strengthened at national, provincial, district

137. There are a number of Management Information Systems (MIS) within MOEYS including the Education Management Information System (EMIS) centered in the MOEYS Department of Planning, a Human Resources MIS (HRMIS) in the Human Resources Section of the Department of Personnel and a Financial MIS (FMIS) in the Department of Finance. Other MIS exist in ESDP II (construction), Non-Formal Department (NFEMIS) and Information and ASEAN Affairs Department (Information Education and Communication – IEC). All remain un-integrated either with one another or with the MIS of other ministries. The activities to deliver this output will rectify this by setting up a task force to identify the aims and objectives of a fully integrated educational MIS, connecting the EMIS, HRMIS, FMIS and others MIS and developing an implementation plan. The EMIS will be reviewed and statistical analysis, general performance indicators, quality indicators and qualitative reporting will be strengthened. Implementation of the activities will ensure that the FMIS is compatible with the MEF system and that the HRMIS system is consolidated. The Information and ASEAN Affairs Department will be developed to play a coordinating role in disseminating information.

Output 1.6: Monitoring and quality assurance systems in place and functional in schools and PTTCs and RTTCs

138. This output will develop a concept paper on the roles and responsibilities of key departments of MOEYS in monitoring and quality assurance activities of the Inspectorate General, Teacher Training, Primary and Secondary Education Departments. It will establish a quality assurance system for teacher education institutions while expanding and consolidating school self-assessment systems for lower and upper secondary schools. It will strengthen the institutional and management capacity to improve the monitoring and quality assurance systems by linking them to the identification of training needs. There will be a review of the functions and performance of the Committee on Continuous Teacher Development (CCTD). A further dimension of this output will be to augment the quality assessment systems. Teacher Standards will be linked to the identification of teacher professional development needs and teacher quality will be monitored using teacher profiles and school self-assessment tools, as well as professional development for secondary school inspectors.

Outputs of component 1

139. This component will have the following major outputs: (i) Education Law disseminated; (ii) a policy framework for teacher development; (iii) NIE’s research capability strengthened: (iv) integration of the various MIS; and (v) a quality assurance system developed and piloted.

COMPONENT 2 TEACHER PROFESSIONAL DEVELOPMENT

140. The objective of this component is to strengthen teacher competencies by improving management, facilities and professional development programs.

Output 2.1: Management capacities of teacher training institutions enhanced

141. The management capacity of teacher training institutions (NIE, RTTC and TTC) will be enhanced by first establishing a framework of teacher training standards linked to the development of a Teacher Education Policy. The approved teacher training standards will provide a benchmark for performance monitoring of quality in teacher training. The institutional capacity of TTCs and NIE will be strengthened through a management leadership training program designed to support institutional directors and deputy directors in the implementation of quality standards, institutional

improvement planning, curriculum review procedures and performance monitoring of quality in teacher training. Institutional strengthening will include a component in the leadership training course focused on building professional research capacity within each faculty.

142. It is planned that a systematic procedure for review and revision of the teacher training content and methodology will be introduced to ensure that the changes to the school curriculum are integrated into the pre-service teacher training program and that appropriate teaching and learning methodology is used in the delivery of the curriculum. The procedure will also involve TTD in the review of in-service teacher training programs to ensure consistency in content and methodology. The revised teacher training curriculum will include the enhancement of action research as a training and professional development methodology. The quality of teacher training programs will be further enhanced through the implementation of an improved system of teacher training performance monitoring, including a review of the methods used in the assessment of student teacher competencies, Teacher trainer competencies and quality assurance of teacher training programs will be evaluated against Teacher Training Standards. These activities will ultimately contribute towards an improved system of accreditation of teacher qualifications and continuing professional development.

Output 2.2: Teacher training institutions facilities, including ICT, upgraded

143. Teacher training facilities will be improved through a program of construction and rehabilitation of buildings, as well as provision of equipment and resources to enable the full functioning of each facility. An initial assessment of existing facilities and other planned physical facilities programs will be undertaken to identify the specific requirement of each teacher training institution. The assessment will determine the scale and scope of activity needed, including the equipment and resource needs of each institution where construction is completed or is planned from another source. The design includes construction or the upgrading of one dormitory facility for female students which will be targeted at an institution prioritized to increase enrollment of females and students from disadvantaged areas. The design also includes provision for a learning centre which will be modeled on the existing resource centre concept to include the construction and equipping of a library and multimedia centre, a study room for teachers, a computer lab and a classroom for teaching practical science. The outcome will be the improved quality of all teacher training facilities to enable the full delivery of a curriculum including use of multimedia resources. Teacher trainers and trainee teachers will be provided with the resources through which to develop skills in practical teaching and learning methodologies and the resources to undertake professional research studies.

Output 2.3: Increased enrollment in teacher training programs of females and students from disadvantaged areas in LS and US teacher training programs

144. Scholarships will be provided for female teacher trainees and for students from disadvantaged areas, teaching instructional materials in NIE and RTTC will be revised to redress the balance towards gender equality. 60 percent of the 500 scholarships will be for females. Facilities of teacher training institutions (e.g., NIE and RTTC) will be improved to provide a safe and secure environment for female teachers and teacher trainees.

Output 2.4: Skills and competencies of teacher trainers in the pre-service teacher training program improved

145. Skills and competencies of teacher trainers in the pre-service teacher training program will be improved by first conducting a comprehensive training needs

analysis (TNA). The TNA will be used to develop the planned training programs corresponding to trainer competency criteria described in the Teacher Training Standards and in the Teacher Standards. The skills and competencies already identified as priority areas for the professional development of teacher trainers have led to the inclusion of training programs to enhance training skills through a Training of Trainers (TOT) course, multimedia instructional materials, development skills training including use of ICT in the classroom, and training in Basic English competency for teacher trainers. The research capacity of teacher trainers will be enhanced through an action research initiative linked to a proposed NIE research program and linked to the inclusion of action research and reflective teaching in the revised teacher training methodology.

Output 2.5: Teaching skills and competencies of secondary teachers improved

146. The skills and competencies of lower and upper secondary school teachers will be improved by first drawing up a comprehensive five year teacher training plan through which all teacher training activities planned through the project and other projects will be coordinated. A baseline study of teacher training needs will be undertaken linked to teacher competencies and Teacher Standards. This will provide the detailed information on levels of teacher qualification required to prioritize training to target groups. It will assist in locating the most disadvantaged districts in terms of the number of under-qualified teachers and lower than average number of female teachers. It will also provide information from which to quantify the competency levels of teachers to determine their English language, ICT and science training needs.

147. Upgrade/retraining programs will be developed and delivered to an estimated 14400 under-qualified secondary school teachers in disadvantaged areas. It is anticipated that the course will include multimedia instructional materials. This rests on the assumption that the technology and the capacity of the course planners is adequate and that the course participants will have access to the necessary multimedia resources. It is also anticipated that the training model will include a face-to-face workshop module and school-based practical assignments such as action research. The planned school network and training of school-based technical group leaders have the potential to be tailored to provide on-going support for under-qualified teachers through a system of mentoring.

148. A training program will be developed to enhance the English Language skills of upper secondary school teachers using a decentralized school-based model. Ideally the English language course will be based on a course book, interactive CD and audio cassette developed in the first year of the project, taught by the English Language teacher in the school in classes held for 2 hours a week over a 2 year period. A system of incentive payments to participants and trainers will need to be developed for this decentralized school-based training model. A training program will be developed to train upper secondary school teachers in the use of multimedia instructional materials including ICT. The model will be similar to that outlined for English language skills training.A training programme will be developed to enhance the identified upper secondary school science teachers competencies.

Output 2.6: Use of multi-media modality for teacher education developed

149. The use of multi-media modalities for teacher education will be developed, initially through the TTD. The first step will be to develop a comprehensive plan for the expansion of facilities and the development of technical capacity within relevant departments. The plan will define the links and responsibilities that will be necessary between TTD, PRD and Information and ASEAN Affairs Department (IAAD). The development of the multi-media modality for teacher education will support the

delivery of some training activities through use of interactive computer-based learning materials and video. One issue needing consideration in the initial stages of multi-media development will be the disparity in access to multimedia resources across the country. Upgrading facilities will need to be coordinated with the implementation of teacher training programs which include a multi-media modality.

150. Multi-media instructional materials can be developed through technical capacity building of teacher trainers and curriculum developers so that they are aware of the potential of multi-media and the ways in which curriculum materials can be prepared. On-the-job training will provide the opportunity for trainers to develop instructional materials for use in selected courses in this project. In parallel with the development of instructional materials it is essential that the corresponding systems of academic and administrative support are developed and implemented, including distribution of materials, completion of assignments, record keeping and student support. The implementation of multi-media components in teacher training programs will be monitored to evaluate their effectiveness in improving quality and in contributing towards meeting the challenge of out-reach to the more disadvantaged areas of the country where access to teacher training opportunities are limited.

Outputs of component 2

151. The major outputs of this component will be: (i) enhanced management capacity of teacher training institutions; (ii) upgraded facilities including information and communication technology at TTCs; (iii) increased enrolment in teacher training programs of females and students from disadvantaged areas; (iv) improved skills and competencies of teacher trainers in the pre-service teacher training program; (iv) improved teaching skills and competencies of secondary teachers; and (v) the use of multi-media modalities for teacher education developed.

COMPONENT 3 STRENGTHENING SECONDARY EDUCATION

152. The objective of this component is to strengthen secondary education opportunities through providing scholarships, upgrading facilities, providing textbooks, a new curriculum and improving school-based assessment.

Output 3.1: Secondary Education Development Plan (SEDP) completed

153. Under ESDP II some progress has been made in preparing a development plan for secondary education. This plan is focused towards providing a context for the construction of secondary schools under ESDP II. The framework for the Secondary Education Development Plan being prepared by the DGSE identifies improvement areas underpinned by a number of strategies to enhance the quality of secondary education. With the aid of additional resources this output will build on the current planning exercise and further clarify the current status of the secondary system and alternative scenarios for the future in a draft plan paying attention to quality issues. It will set these scenarios firmly within a sector-wide setting. The final report will provide a solid basis for future development in the secondary sub-sector and cover five broad areas: (i) enhancing the skills of the secondary education workforce; (ii) strengthening the secondary school support structures within MOEYS; (iii) ongoing secondary school improvement; (iv) supporting secondary teaching, learning and enhancing facilities, (v) resources and funding for secondary education. The school networks and core school concepts will be included in the SEDP.

Output 3.2: Secondary school networks strengthened, school management strengthened and school improvement planning introduced.

154. Secondary school networks will be established during the first period of the project closely linked to activities to strengthen school management and to introduce school

improvement planning. Secondary school networks will be established at 30 locations to develop and sustain teacher competencies through professional development activities. Resource schools will be identified to support these networks. These schools are in addition to the resource schools and networks to be provided by ESDP II. Provision will be made to ensure that as far as possible all resource schools are equally resourced. A manual of work procedures will be developed and a workshop will be part of the establishment of networks in selected locations.

155. The leadership training program for USS Directors will include a module to introduce processes of school improvement planning linked to a school self-assessment model. Elements of the leadership training program will focus on facility and resource management, performance monitoring and achievement of minimum quality standards, school-based support for the professional development of teachers including mentoring for under-qualified teachers and school-based induction programs for newly qualified teachers. Other elements include optimal use of textbooks and other instructional materials including ICT and multimedia learning resources, gender sensitization and implementation of the gender policy for education, equitable access to learning opportunities for all children, student retention, student assessment and careers guidance.

156. The skills and competencies of school and network-based resource teachers will be enhanced through a training of trainers program. The training program will be designed to have a school-based focus. Part of the training activities will be undertaken by the participants in their schools through practical application of new skills and knowledge, using methodologies such as action research and peer evaluation.

Output 3.3: Increased enrollment in secondary schools of girls and children from disadvantaged areas

139. This output will in particular, contribute towards the reduction of gender disparities and inequity in access to secondary education for children from disadvantaged areas, through increasing net enrollment and transition rates to secondary schools for girls and children from disadvantaged areas. To secure the higher enrollment and transition rate of girls in disadvantaged areas, scholarships for 4,000 bright and disadvantaged students at upper secondary level will be provided and school facilities will be improved so that female teachers and students feel the school environment is safe.

Output 3.4: Secondary school facilities including ICT, laboratories and libraries provided and/or upgraded

157. Learning centers will be provided at 30 resource schools as part of the establishment of secondary school networks. These centers will include a laboratory, ICT room, a multi-media centre and libraries. In order to generate income to cover maintenance, business plans will be developed to allow the ICT facilities to be used as a community resource. All upper secondary schools will be provided with library books and basic learning materials to support the introduction of selected new curriculum.

Output 3.5: Curriculum in priority areas including ICT developed and in use in secondary schools

158. This output will support the development of remaining lower secondary and upper secondary curricula, including EVEP and guidelines for local development of LLSP and the development of grade 12 curriculum standards. It will support dissemination of these curriculum items to schools and across the education system, to ensure

teachers, teacher trainers and education managers are familiar with and understand the requirements and philosophy of the new curricula. Following the dissemination teachers will be able to use the material in the new textbooks, teaching guides and other instructional materials in their teaching as they become available.

159. PRD will be supported in developing the selected new curricula and to hold workshops to expedite and focus the process. The support will include printing and dissemination of the new curriculum as part of teachers’ continuing professional development. Reference books, materials and examples of curricula and courses will be procured to enrich and inform processes within PRD.

160. To complement this output, the project will support development of PRD capacity to commission, manage and evaluate textbook and instructional materials development by private publishers and media producers, strengthening the ICT capacity of PRD and the enhancement of pre-service and in-service teacher development, which will both serve as a channel for dissemination of the curricula and reflect the new curricula in the training content and methods.

Output 3.6: Upper secondary schools countrywide have textbooks and teacher's guides

161. The new curriculum is to be written and phased-in from the academic year 2008/09. The shortage of textbooks at upper secondary level will be solved in the interim by buying from the copyright holders, the Publishing and Distribution House (PDH) the current textbooks and teaching materials needed to bring the ratio of books to pupils to 1:2. Sufficient numbers of current textbooks and teacher's manuals will be ordered from the PDH through a negotiated direct purchasing agreement at the start of the project. These books and their delivery, will be paid for by the project PMU and be in the schools by the beginning of school year 2009/10.

Output 3.7: Enhanced capacity of the Pedagogic Research Department and the Education Materials Approval Board

162. The PRD will be supported in its recently adopted role as the body responsible for learning materials in MOEYS. PRD will have responsibility of supporting the appropriate procurement office in putting textbook writing and production out to tender and supporting interested publishers with specifications, information and guidance to enable publishers to develop material suitable for submission to the MOEYS textbook approval process. PRD is also charged with the responsibility for ensuring that learning materials are developed and are on schedule in line with curriculum requirements.

163. PRD will be supported in developing a system to manage and execute this process. Broadly, the PRD will draw up detailed procurement briefs to enable the MOEYS procurement system to request private publishers to develop books to the required specifications and characteristics. The PRD will be the executing body of the existing Prequalification, Evaluation and Award of Contract Committee (PEAC) and Education Materials Approval Board (EMAB) who will ensure transparency and quality in book selection. The publishers will price, print, market and sell their textbooks directly to schools. The schools will hold the budget for textbook purchase, under the decentralized financial system.

164. For PRD, the institutional role will continue to be one of generating the government’s specification of the school curriculum. There will be a significant shift to an expanded role in which PRD maintains responsibility and has a continuing direct relationship with the textbook drafting and approval process, in managing and guiding those who are developing the textbooks. PRD will also be pivotal in maintaining quality by playing a part in approving publishers' products (in the final

approval, as part of a broader and higher level committee).

165. The implications for change and development in PRD are significant and the capacity building required will be furnished under the Project. In order to build the capacity of the PRD technical assistance will be mobilized to work alongside PRD staff with concentrated capacity building using counterparts rather than general training. This method of capacity building has been chosen so that the PRD will have the necessary skills to draft procurement documents, write specimen materials and commission books to be supplied by the private sector to tight specifications. It will also have the capacity to organise transparent book evaluation at all levels.

Output 3.8: Assessment of student achievement in secondary education is based on curriculum standards

166. Curriculum standards have been developed at grades 3, 6 and 9 and national assessments (standardized tests) in Khmer and Mathematics have, or will be, conducted at grades 3, 6 and 9. These are important steps towards a national system of standards-based assessment that will in turn provide a secure basis for teachers and students to measure student progress and achievement and for evaluation of the quality of education at national, provincial and school level.

167. This output will develop a national assessment and examinations system that is thoroughly standards-based. It is necessary first to produce a national assessment policy that: creates a coherent relationship between different types of assessment; provides for quality assurance of assessment in schools; ensures equity and access; defines the role of ICT and sets out a strategy for the phased strengthening of the Examination Office, with a view to it eventually becoming an independent body. The strengthening of the Examinations Office should include the enhancement of its capacity to use ICT for assessment administration and record keeping.

168. Guidelines and exemplar assessment instruments and examination questions will be developed and used as a basis for training Examinations Office staff and item writers, to set and mark standards-based examinations, secondary teachers to implement standards-based assessment in schools and PRD staff to monitor and evaluate its implementation.

Outputs of component 3

169. The major outputs of this component will be a secondary education development plan; strengthened secondary school networks, secondary school management and secondary school improvement planning; increased enrolment in upper secondary schools of girls and children from disadvantaged areas; upgraded secondary school facilities including information and communication technology, laboratories and libraries; a new curriculum in secondary schools; textbooks and teacher's guides provided to upper secondary schools countrywide; enhanced capacity of the PRD and EMAB; and assessment of student achievement in secondary education based on curriculum standards.

PROJECT INVESTMENT PLAN

170. The project investment cost is estimated at $33.40 million equivalent, including physical and price contingencies, taxes and duties (Table 1).

171. The grant proceeds will be used to finance civil works; procurement of books and instructional materials, vehicles, equipment and furniture; scholarships; consulting

services; training, workshops and technical meetings. The proceeds will not finance salaries of regular project staff, rental of office space, taxes and duties. Detailed cost estimates and the financing plan are outlined in Appendix 17.

a Includes taxes and duties of US$1.2 million

b In May 2007 prices

c Physical contingencies computed at5 percent for all expenditure categories; price contingencies computed at 4 percent on local currency costs and 2 percent on foreign exchange costs.

d Not applicable for grant financing under the Project.

Source: Financial Analyst Estimates

FINANCING PLAN

172. The Government has requested a grant of US$27.1 million from ADB’s Special Funds resources to help finance the Project. ADB will finance 81 percent of the project costs. The Government will finance the remaining 19 percent of US$6.3 million as counterpart financing. The summary of the financing plan is in Table 2.

Table 1: Project Investment Plan

Table 2: Financing Plan

IMPLEMENTATION ARRANGEMENTS

Project management

173. MOEYS will be the Executing Agency and will have overall responsibility for project coordination and implementation. A Project Steering Committee, chaired by a Secretary of State, will provide overall guidance to the Project. Its membership will include: representatives from the Department of Planning, Department of Finance, Department of Teacher Training, Department of General Secondary Education and the Pedagogical Research Department, and the National Institute of Education. The Steering Committee will also include representatives from Ministry of Economy and Finance, Ministry of Women's Affairs and Ministry of Planning.

174. The Director General of Education will serve as the Project Director. He will be supported by a deputy director and 5 staff 16 and four support staff appointed by MOEYS. This staff will be located within the Directorate of General Education to oversee day-to-day project implementation. The Project Director will be a member of PSC and will report to it directly. A number of project activities will be delegated to relevant technical departments within MOEYS and will be implemented within the existing administrative structure.

175. Three technical units will be established to guide, and support implementation of component specific activities. The implementation of specific activities will be the responsibility of the departments under whose authority those activities fall. TUs will have representation from implementing departments. Each TU will have representation from a member of the Gender Working Group to ensure that gender aspects of different activities are mainstreamed. The TUs will report to the Project Director whose responsibility it will be to ensure coordination and supervision of TUs.

Implementation period

176. The Project will be implemented over 6 years, from early 2008 to 2014. The implementation schedule is outlined in Appendix 18.

Procurement

177. All ADB-financed goods and services will be procured in accordance with ADB’s Procurement Guidelines dated April 2006 andprevailing government procedures acceptable to ADB. The PMU, in close coordination with the TUs, will be responsible for all procurement. The indicative procurement packages are outlined in Appendix 19

Procurement of equipment and materials

178. Supply contracts for goods estimated at $100,000 equivalent or more will be awarded on the basis of international competitive bidding. Supply contracts for goods such as vehicles and computers (except in the case of textbooks and instructional materials) of less than $100,000 but more than $20,000 will follow national competitive bidding (NCB) procedures. Minor items costing less than $20,000 but more than $5,000 equivalent may be procured by direct purchase with advertising, and items costing less than $5,000 maybe procured by direct purchase without advertising. Supply contracts for textbooks and instructional materials may be awarded to the publishing and distribution house (PDH) on the basis of direct

16

The staff will have the following expertise: administration. finance, accounting, planning and procurement; and monitoring.

purchase 17. Details of procurement packages and technical specifications must be submitted for MEF and ADB approval before procurement.

Procurement of civil works

179. Project civil works will consist of construction and upgrading of learning facilities, dormitories, and sanitation facilities at teacher training institutions and secondary schools. the civil works component will be financed by ADB and government and will be awarded on the basis of national competitive biding (NCB) procedure, following government procedures acceptable to ADB. the PMU and TU in charge will also ensure that appropriate maintenance contractual arrangements are signed prior to the commissioning of civil works at the expense of the government in order to make sure that the constructed civil works are well maintained during their economic life.

Consulting services

180. The project will be supported by approximately 628 person-months of consulting services (264 person-months international and 364 person-months national). The selection and engagement of consulting services will be procured in a single package. The full technical proposal and quality- and cost-based selection method will be used, in accordance with ADB’s Guidelines on the Use of Consultants (April 2006, as amended from time to time). The consulting services are designed to provide technical support to the project, management and implementation, as well as to build longer term institutional development and capacity for planning, management and delivery of teacher professional development and secondary education. the consulting services cover broad areas of expertise that include (i) institutional development, (ii) MIS development, (iii) teacher professional development, (iv) curriculum and materials development including ICT (v) examination reform, (vi) facilities and equipment improvement and (vii) gender and equitable access. Indicative terms of reference for consultants are provided in Appendix 20.

Anticorruption policy

181. ADB’s Anticorruption Policy (1998, as amended to date) was explained to and discussed with the Government and the Executing Agency. Consistent with its commitment to good governance, accountability and transparency, ADB reserves the right to investigate, directly or through its agents, any alleged corrupt, fraudulent, collusive, or coercive practices relating to the Project. To support these efforts, relevant provisions of ADB’s Anticorruption Policy are included in the grant regulations and the bidding documents for the Project. In particular, all contracts financed by ADB in connection with the Project shall include provisions specifying the right of ADB to audit and examine the records and accounts of the Executing Agency and all contractors, suppliers, consultants, and other service providers as they relate to the Project. The Recipient will ensure that information regarding procurement, including a list of participating bidders, name of the winning bidder, and procedures adopted in awarding contracts, is posted on the MOEYS website. The Recipient will also ensure that criteria and procedure for selection of candidates for scholarships is also posted on MOEYS’ website.

Disbursement arrangements

182. To expedite project implementation through the timely release of ADB’s funds for eligible expenditures, a dollar imprest account will be established by the Government, at the national bank of Cambodia or a commercial bank acceptable to

17 In terms of procuring existing textbooks and instructional materials that are in copyright, direct purchasing method will be used due to the fact that such materials are available from only a single proprietary source, namely Publishing and Distribution House (PDH). This procurement method is also known as single or sole sourcing.

ADB, within 3 months of grant effectiveness. MEF will delegate the authority to operate the imprest account to the DGE to facilitate access to project funds to implement project activities. The imprest account will be established, managed, replenished and liquidated in accordance with ADB’s Loan Disbursement Handbook 18 dated January 2007. The imprest account, with a ceiling amount of $2.7 million 19, will be utilized for eligible project expenditures. In anticipation of a large number of small contracts involved, the statement of expenditures (SOE) procedure will be used for expenditures of $100,000 or less.

183. A second generation imprest account will be opened at the National Bank of Cambodia or a commercial bank acceptable to ADB to facilitate access of the PMU to project funds to implement Project activities. The second generation imprest account is funded from the first generation imprest account. Chart 1 outlines the Grant Financing Mechanism.

Chart

Ministry

Directorate of General Education

Accounting, auditing and reporting

184. MOEYS will maintain records and accounts to identify goods and services financed from the grant proceeds. Project accounts, including financial statements, statement

18 It should be noted that this Handbook supersedes all previous editions and takes effect in January 2007, applicable to both loan and grant-funded ADB investment projects and programs.

19 In various ADB projects and programs, the ceiling amount is set at US$2.0 million. However, due to the capacity building nature of EEQP with a large number of payments for small expenditures, it is recommended that the ceiling amount be US$2.7 (equivalent to 10% of the total ADB grant fund), the maximum amount allowed as stated in ADB's Loan Disbursement Handbook dated January 2007.

Chart 1 - Grant Financing Mechanism

of expenditures and imprest account records will be audited annually by independent external auditors acceptable to ADB. The auditors’ report and copies of the certified accounts and related financial statements, including the auditors’ opinion on the use of grant proceeds, compliance with grant covenants and use of the imprest account under ADB’s statement of expenditures procedure, will be submitted to ADB in English not later than 6 months after the close of the Governments’ fiscal year. The independent external auditing services will be financed from the grant proceeds.

185. The PMU will prepare quarterly reports on project implementation and submit them to ADB within 30 days after each quarter. The reports will be in a format acceptable to ADB and will indicate, among other things, the progress made against established targets, problems encountered during the last quarter, steps taken and proposed to resolve problems, compliance with grant covenants and proposed program of activities for the succeeding quarter. The PMU will compile the TUs' reports into a quarterly report to be submitted to MOEYS and ADB. Within 3 months after physical completion of the Project, the PMU will submit to ADB a project completion report on project implementation, accomplishments, benefits and impact.

Project performance monitoring and evaluation

186. A base-line study will be undertaken at the beginning of the project. The monitoring and recording system and procedures will be reviewed and improved. A new project performance management system will be developed and institutionalized within MOEYS to monitor and evaluate implementation performance and development impact at various stages of the project cycle. Project performance monitoring will focus upon project implementation plans and targets and their execution and achievement. Performance evaluations will examine the impact of project interventions; problems and constraints faced; and their reasons and solutions. The PMU will monitor project activities, using data primarily from the TU reports and periodic studies. TUs will submit monthly, quarterly and annual reports on indicators, including training outputs, civil works construction, provision of learning facilities and materials and equipment. TUs will also make monthly visits to field sites supported by the Project and submit field visit reports to the PMU.

Project review

187. ADB and the Government will jointly undertake half-yearly project reviews to assess progress in each component, identify difficulties or constraints and help determine ways to overcome them. Before each review, the PMU, in coordination with TUs, will prepare a progress report based on the quarterly report and submit this to ADB and the Government.

188. ADB and the Government will conduct a mid-term review during the last quarter of the third year of project implementation to inform planning for the second half of the Project. The mid-term review will: (i) review the scope, design and project implementation arrangements; (ii) identify changes needed; (iii) assess performance against targets and benchmarks; (iv) review lessons and experiences in education quality enhancement, focusing on the curriculum, textbooks and teaching and learning facilities; (v) review compliance with grant agreements and covenants; and (vi) recommend changes in project design and/or implementation arrangements. The findings will be discussed at the mid-term workshop to be attended by representatives from concerned government agencies, including Ministry of Economy and Finance, Ministry of Women's Affairs, Ministry of Planning, POEs, DOEs, the consultants and ADB.

PROJECT BENEFITS, IMPACTS AND RISKS

Project beneficiaries

189. Project beneficiaries can be categorized as those who stand to gain directly and immediately from the Project interventions, and those who benefit in a less direct, but nonetheless substantial, manner.

190. Direct beneficiaries. These include: (i) academic staff and management of the NIE and the 24 TTCs through activities under component 2; (ii) approximately 8,500 teacher trainees studying on pre-service teacher training programs over 5 years attending training courses at the TTCs through activities designed to improve preservice courses under component 2; (iii) approximately 14,400 current lower and upper secondary teachers benefiting from in-service training; (iv) 300 upper secondary schools benefiting from technical assistance in school management, school networking and school improvement planning; (v) staff of MOEYS including provincial and district offices teams trained to strengthen their capacity to plan, manage, administer, and regulate the system.

191. At the teacher training institutions (RTTC, PTTC) level (component 2), (i) 30 TTCs will have learning centers constructed or upgraded, have library books and learning center equipment; and (ii) 600 teacher trainees will benefit from accommodation in dormitories construction (1 block) and rehabilitation (6 blocks).

192. At the secondary school level (component 3), (i) 30 secondary schools will have learning centers constructed and equipped with learning resources and equipment; (ii) 4,000 disadvantaged students will receive scholarships to study at USS; (iii) 350,000 USS students will be provided with textbooks and approximately 7,000 USS teachers will be provided with teacher's guides.

193. Indirect benefits include: (i) management information systems will be more functional and internal system efficiency improved; (ii) students in lower secondary and upper secondary schools, both currently and in the future, will be taught by better trained and motivated teachers and hence lower repetition and dropout rates and will have more relevant and employable attitudes, skills and knowledge; (iii) employers and potential employers will have staff with more relevant and employable attitudes, skills and knowledge which will reduce the need for costly initial training of recruits and/or greater returns from what they undertake; (iv) higher education institutions will have better prepared applicants.

194. Benefits of the reforms and quality improvements in primary, lower secondary and upper secondary teacher training will also extend to a population of school students that is currently around 3.4 million.

Economic analysis

195. The Project will have substantial benefits for the education sector, particularly for secondary education subsector. Investments made under the Project have significant benefits to the community. Major economic benefits of the Project will include: (i) improved efficiency of infrastructure and personnel and in allocation of resources; (ii) enhanced secondary school graduates in terms of numbers and productivity. Specific economic benefits will include (i) improved system costeffectiveness by increasing capacity utilization of teacher training institutions, secondary schools, (ii) reducing the unit cost and strengthening the management in teacher training and secondary education; (iii) increase in the number of secondary school graduates who will participate in the labor market; (iv) raised academic standards of beneficiaries will help improve the alignment between graduate skills and the market; (v) increased earning capacity and spending ability of low-income

groups which will help reduce poverty; and (vi) anticipated cumulative savings of about 0.5 percent of annual recurrent costs of secondary education. An economic analysis is attached as Appendix 21.

Sustainability

196. The Project will address financing issues. It has been designed so that recurrent costs will be minimized for the Government and community. The improvement of the quality support systems under the Project is intended to reduce wastage, improve the internal efficiency of secondary education and reduce the cost of producing a graduate in Cambodia, particularly in the disadvantaged areas and areas dominated by ethnic minority groups. The incremental recurrent project costs arise largely from increased access to secondary schooling through enhanced quality and relevance. The costs of construction of learning centers and dormitories at TTCs and secondary schools have been minimized by using efficient designs and maximizing the utilization of locally available resources and materials. Although new construction and renovation of TTCs and secondary school facilities are being financed, sustainability is being ensured by the Government and local community’s commitment to contribute to the cost of operation and maintenance (O&M).

197. Total incremental recurrent costs will be maintained at minimal levels after the Project implementation period and increases are contained through allocation of existing resources. The recurrent costs to be paid by the Government after the Project are estimated to be less than US$1.47 million per annum and include incremental staff remuneration, O&M of civil works and equipment, O&M of vehicles and PMU/TUs operations. With PMU/TUs operations being terminated after the Project comes to an end, the recurrent costs will be further reduced and the Project will be more affordable to the Government and local community in Cambodia. In this regard, risks that negatively affect sustainability of the Project outcomes and activities are considered minimal. A fiscal impact and sustainability analysis is included in Appendix 21.

Impact and risks

198. The targets and indicators included in the impact and outcome rows of the Design and Monitoring Framework summarize the anticipated impact the project at the macro-level of the project design (Appendix 1). There will be an improved transition and completion rates in upper secondary schools and a corresponding improved level of knowledge and skills of secondary school students by 2018. To achieve this impact the outputs will contribute to an outcome that will see: transition rates to upper secondary schools in remote areas rise; increased access of female trainees from rural areas/ethnic minorities to TTC increases; 14400 under-qualified secondary teachers trained; curriculum and assessment reforms successfully implemented; facilities in schools and TTCs upgraded and upper secondary students having subject textbooks according to the agreed ratio of 1:2.

199. The risks and assumption included in the impact and outcome rows of the Design and Monitoring Framework identify a number of conditions and threats to the implementation of the project. It is assumed that secondary education and equity is accorded a high priority by Government, MOEYS will provide the required level of inputs and resources and that capacity can be built to assist the education system in absorbing a wide-ranging reform process. However there are some risks: resource constraints may hinder implementation, teachers may be insufficiently motivated to implement reforms and access to education by females and people in remote areas may be constrained by traditional and cultural barriers.

6.0 SUMMARY

200. The first three sections of this report have set out the context of the proposed project, looking at the objectives of TA-4823, the national context and aspects of the education system. An account of the review of issues and opportunities followed which concluded that investment in a number of areas to support education system management, teacher professional development and strengthening secondary education was feasible. The proposed project has been described and summarized in a Design and Monitoring Framework which includes a summary of required inputs. Three special features are integrated into the three components: ICT, capacity building and broad interventions related to gender, poverty and ethnic minority representation. The sections on the project investment plan, the financing plan and project benefits supported by technical annexes describe the cost of the inputs in detail. Project benefits supported by an economic analysis, a sustainability section and a summary of the impacts and risks completes the feasibility report.

APPENDICES

Appendix 1Design and monitoring framework

Appendix 2 DMF Expanded list of activities

Appendix 3 Approaches to consultation

Appendix 4 TA-4823 CAM working papers

Appendix 5 Structure of the Education System

Appendix 6 Teacher demand projections

Appendix 7 Secondary education statistics

Appendix 8 MOEYS organisational chart

Appendix 9 Selected education sector documents

Appendix 10 Education Indicators

Appendix 11 External assistance to the education sector

Appendix 12 Key projects delivering external assistance

Appendix 13 Distribution of RTTC and PTTC

Appendix 14 Summary poverty reduction and social strategy

Appendix 15 Capacity building guidelines

Appendix 16 Information and communication technology

Appendix 17Detailed cost tables

Appendix 18Implementation schedule

Appendix 19Procurement plan

Appendix 20Terms of Reference for consultants

Appendix 21 Economic and sustainability analysis

Design Summary Performance Targets/Indicators

Impact

Increased number of educated and skilled people from all sections of the Cambodian population

Improved lower to upper secondary transition rate from 66% in 2006 to 85% by 2018

Improved US completion rate from 15% to 50% by 2018

Improved level of knowledge and skills of secondary school teachers and students by 2018

Data Sources/ Reporting Mechanisms

EMIS Reports Grade 9 National Assessments and examination results at Grade 12

Assumptions and Risks

Assumptions:

Government continues to accord high priority to quality of education

Resource allocations to education are provided to strengthen quality education

Risk:

Government’s commitment wavers and resource constraints hinder implementation

Outcome

Education of improved quality and equity with more effective teacher development, strengthened education management systems and improved and expanded secondary education

Access of female trainees from disadvantaged areas to RTTCs and NIE increases from 10% to 20% by 2014

14400 LS and US teachers given in-service training by 2014

School curriculum and assessment reforms implemented by 2012 Facilities in schools and TTCs upgraded in line with criteria and needs analysis by 2013

Children in US schools have textbooks in each subject according to the stipulated ratio of I:2 by September 2008/09

TTC records

Training records

Dissemination and training records

Construction contracts

Procurement and distribution records

Procurement, distribution records, modified EMIS system

COMPONENT 1: Education System Management and Development

Outputs

1.1 Education Law disseminated Education Law disseminated within 6 months of being passed by the National Assembly

1.2 Policy framework for teacher education and teacher management developed

1.3 The organization and function of MOEYS at central, province, district and school levels reviewed and agreed upon

Policy Framework agreed by early 2009 Sub-decree on teacher education and management issued by end 2009

Published Education Law

Distribution Records

Policy framework document

Sub-decree

Report with action plan approved by mid 2009 Technical report Project Reviews

Steering Committee deliberations

Assumptions:

Government provides required level of inputs and resources

Capacity can be built to assist the education system in absorbing a wide-ranging reform process

Risks:

Teachers are insufficiently motivated to implement reforms

Access to education by females and people in remote areas is constrained by traditional/cultural barriers

Assumption: Education Law passed by National Assembly

Assumptions: Teacher policy framework supported by relevant institutions

All stakeholders willing to implement the policy

Assumption: MOEYS committed to the review

Risk: Human resource constraints hinder restructuring

1.4 Strengthened National Institute of Education Institutional Development Plan agreed by mid 2009 Research studies published by end 2010 and end 2011

Institutional Development Plan document Research reports

Assumptions:

Government commitment is strong

NIE staff support enhancing NIE’s responsibilities

1.5 Information systems strengthened at national, provincial, district, levels and consolidated at central level

Aims and objectives for a fully integrated educational MIS by early 2009 Review of MIS with detailed and time-related development plan completed by early 2009 Equipment procured by end 2009

Integrated system trialed by mid 2010

Steering Committee minutes

Task Force Reports

Reports from coordinators of each MIS system

Hardware procurement documents and records of installation

Assumptions:

The challenges of developing a functional and useful MIS are fully understood

Staff capacity developed to implement information systems stay in post

Designed or procured software adequate for the task

1.6

Quality assurance scheme piloted in 30 schools by end 2009

Quality assurance system operating in PTTCs and RTTCs by end 2009

Monitoring report

Assumption:

Teachers, teacher trainers and communities will accept proposed monitoring systems

Project Steering Committee minutes

COMPONENT 2: Teacher

Outputs

2.1 Management capacity of teacher training institutions enhanced

Directors and senior staff of all teacher training institutions trained by 2012

Procedures for the teacher training curriculum review established by 2012

Attendance lists

Participants Evaluation Reports

Review procedure documents

Project Steering Committee minutes

Assumption:

Senior staff willing to participate

Risks

Competing commitments of participants

Insufficient incentive for retention of trained staff

Competence of managers to take on enhanced leadership role

2.2

Facilities’ needs analysis conducted by end 2008. Facilities upgraded in accordance with the facilities needs analysis by 2011

Library books, furniture and equipment provided by end 2011

Report to Project Steering Committee

Procurement reports

Review Missions

Assumptions:

Activities coordinated with other projects

Secure rooms and storage space

Corresponding system for management and maintenance of resources in place

2.3 Increased enrolment of females and students from disadvantaged areas in LS and US teacher training programs

Percentage of female students in NIE increased from 30% in 2006 to 40% by 2013

Percentage of female students in RTTC increased from 40 in 2006 to 50% by 2013

500 students (of which 60% are girls) from disadvantaged areas receive scholarships

Student enrolment figures from NIE and RTTCs disaggregated by gender Reports from TTD EMIS Reports

Assumptions:

Sufficient target groups completing basic education

Risks:

Scholarships not adequate incentive to attract students to the teaching profession

Logistics for teachers in remote areas remain inadequate

2.4

Training needs analysis and plan for professional development of trainers completed by early 2009

Instructional materials for TOT developed by mid 2009, for Basic English, use of multimedia and ICT,

Training needs analysis and training plan documents

Instructional materials

Attendance lists from training programs

Participants evaluation reports

Assumptions:

Teacher professional development linked to Teacher Education Policy

A system of accreditation is in place which makes certification of courses more meaningful

Monitoring and quality assurance systems in place and functional in schools, and PTTCs and RTTCs

Professional Development

Teacher training institutions facilities, including ICT, upgraded

Skills and competencies of teacher trainers in the preservice teacher training program improved

2.5 Teaching skills and competencies of secondary teachers improved

and science developed by end 2009 and training of teacher trainers successfully implemented by 2012

Baseline study of training needs completed by early 2009

Training plan completed by mid 2009

14400 under-qualified LS and US teachers trained by 2013

2500 US teachers trained in basic English by 2012

2500 US teachers trained in use of multimedia and ICT by 2012

2500 US teachers trained in practical science by 2012

Performance monitoring reports

Baseline report

Training Plan implemented

Attendance lists

Participant evaluation reports

Risks:

Limited time for teachers to attend training

Allocation of budget not on time according to activity plan

Assumptions:

Sufficient resources including school-based trainers / mentors to support professional development of under-qualified teachers

Teachers motivated to study over a prolonged period (Basic English, Multimedia/ICT and science)

School-based training model is effective and motivating

Risk:

Lack of school-based support –difficult for under-qualified teachers to implement training in their classroom practice

2.6 Use of multi-media modalities for teacher education developed

Technical capacity of MOEYS staff developed by 2011

Multi-media modality implemented and monitored in selected components of teacher training by 2011

COMPONENT 3 Strengthening Secondary Education

Outputs

3.1 Secondary Education Development Plan completed

Secondary Education Development Plan approved by mid 2009

Participants evaluation reports

Monitoring and evaluation reports

Assessment report

Assumption: Infrastructure (facilities and resources) in place

Risk:

System sustainability problematic – recurrent running costs, technical expertise, maintenance of equipment and availability of consumables

3.2 Secondary school networks strengthened, school management strengthened and school improvement planning introduced

All US school management teams trained by 2012

30 US resource school networks strengthened by 2012

All 300 US schools have school improvement plans by 2012

TOT programs for school/network-based Resource Teachers successfully implemented by 2012

Development Plan document Project Steering Committee minutes

Assumption: MOEYS committed to strengthening secondary education

Risk: Lack of agreement on development strategies

Attendance lists

Participants evaluation reports

School Improvement Plans

Attendance lists

Participants evaluation reports

Assumptions: School network concept is accepted

Resources will be available beyond the project period to support school networks

School and network-based trainers have the capacity to be effective

Risk:

Lack of follow through on Resource schools and school networking

3.3 Increased enrolment in secondary schools of girls and children from disadvantaged areas

4000 students (60% of whom will be girls) from disadvantaged areas provided scholarships to attend US schools.

Net admission rates and transition rates into LS and US

Assumptions: Access and quality of secondary school provision is of an adequate standard Additional resources are

3.4

Criteria developed for providing equipment to schools by late 2008

30 US resource schools receive new library books and laboratory and ICT equipment by end 2012 Training courses run on how to use and maintain the equipment ongoing to end 2012

All US schools receive a package of equipment, learning materials and library books

Working Group TOR and record of meetings

Priorities and program defined and evidenced in minutes of Working Group

Proper procurement process evidenced by records of bidding process

Observation

Training program documents

Trainers selected and trained

targeted to this beneficiary group

Risks:

Access rates increase but opportunity costs remain high

Assumption:

There is electrical power and internet connectivity to supply the equipment

Risk:

Training wrongly focused on IT and not on pedagogical use of ICT

3.5

New curricula (including EVEP) for secondary schools developed and introduced in schools, by end 2011

Reports from PRD, EMIS, project management, committees; printed copies of curriculum documents in schools

EVEP documentation in schools

Assumption:

Institutional capacity to develop curricula in time is adequate

Risk:

Change in policy on curriculum

3.6

Students in US schools have textbooks in each subject according to the stipulated ratio by the beginning of school year 2008/09

Teachers in US schools have textbooks and teacher’s guides by the beginning of school year 2008/09

Supplier submits delivery receipts signed by the schools

Assumption:

Textbook preparation and procurement procedures are streamlined

PDH has the capacity to produce the books in time to be delivered to schools in time

Risk:

Complexity of procedures hampers timely development and procurement of text books

3.7

PRD has the capacity to create pre-bidding documents for text book development by late 2008

PRD has the capacity to create instructional materials by late 2009

PRD has the capacity to administer evaluation of teaching and learning materials by late 2010

The supply of textbooks based on the new curriculum is devolved to the competitive market by late 2011

Pre-bidding documents

Assumption:

PRD has suitable staff for training

Risk:

Procedures hinder participation of independent publishers in text book development

3.8 Assessment of student achievement in secondary education is based on curriculum standards

Assessment policy approved and disseminated to all schools by mid 2009

60 staff trained and guidelines on assessment and exemplar assessment

MOEYS and MEF procurement guidelines

Policy document Assessment guidelines and

Assumptions:

There is support for the development of curriculum standards for Grade 12 Necessary curriculum

Secondary school facilities including ICT, laboratories and libraries provided and/or upgraded

Curriculum in priority areas including ICT developed and in use in secondary schools

Upper secondary schools countrywide have textbooks and teacher's guides

Enhanced capacity of the Pedagogic Research Department and the Education Materials Approval Board

instruments developed by late 2009

Examinations Office capacity strengthened by 2013

TOT delivered to all trainers and all secondary teachers trained by end 2012

Standards-based assessment implemented at the secondary level by end 2013

Activities and Milestones Summary (MS)

1.1.1 - 1.1.3 Print and disseminate Education Law

exemplar instruments

Procurement and training records

Participant evaluation of training

Independent report on the examination items that have been produced by the trained staff

development completed on time

Donor cooperation in developing coherent and consistent approaches to student assessment

Resources available to strengthen use of ICT in assessment and examinations

Risk:

Low incentives for teachers discourage active participation

Inputs

1.2.1 - 1.2.5 Prepare teacher education and management policy document, submit for approval, issue sub-decree

1.3.1 - 1.3.3 Review current structure and functions of MOEYS at all levels including schools, prepare report with action plan

1.4.1 - 1.4.5 Develop NIE institutional development plan, develop education research capacity, enhance staff professional capacity, assist planning and management training program, develop outreach capacity

1.5.1 - 1.5.4 Review MOEYS information systems, design integrated and consolidated system, support EMIS, HRMIS and FMIS

1.6.1 - 1.6.3 Develop quality assurance (QA) concept, establish a QA system for NIE and TTCs, expand, consolidate LSS and USS school QA systems

2.1.1 - 2.1.4 Develop and publish teacher training standards (MS), implement managementleadership training program, review and revise curriculum content and methodology, performance monitoring and trainee assessment

2.2.1 - 2.2.3 TTC participatory facilities needs analysis, construct/upgrade facilities, provide library books, furniture and practical equipment,

2.3.1 - 2.3.4 Develop criteria for equitable access materials, upgrade facilities to make them safer for female staff and students, provide scholarships for female and other teacher trainees at NIE and RTTC

2.4.1 - 2.4.4 Prepare TNA and develop training plan for teacher trainers, TOT training programs, training to produce multi-media materials, English program for TTC staff

2.5.1 - 2.5.6 TNA for teachers, project teacher training plan, training for under-qualified teachers, train USS teachers in basic English skills, use of multi-media including ICT, practical science

2.6.1 - 2.6.5 Plan multi-media instructional materials facilities (MS), develop MOEYS staff capacity, multimedia use in teacher training programs, monitor and evaluate effectiveness

3.1.1 - 3.1.5 Prepare SEDP and issue directives

3.2.1- 3.2.3 Strengthen secondary school networks, identify resource schools, leadership training program in school improvement planning for USS management teams, develop competencies of school and network based trainers

3.3.1 - 3.3.2 Upgrade secondary school facilities in remote areas, provide USS scholarships for talented and disadvantaged students

3.4.1 - 3.4.4 Learning centers designed & constructed in identified schools (MS) procure equipment, deliver and install, training courses on how to manage, use, maintain equipment,

3.5.1 - 3.5.3 Develop and disseminate new selected LSS USS Curriculum

3.6.1 - 3.6.3 Purchase USS textbooks and deliver to schools (MS)

3.7.1 - 3.7.5 Develop capacity of PRD and EMAB staff in procurement preparation, train materials’ evaluators, workshops on writing materials, place materials on designated web pages

3.8.1 - 3.8.7 Develop assessment policy, assessment guidelines exemplar materials and train MOEYS staff, strengthen the Examinations Office, train PRD to monitor and evaluate implementation activities, train provincial level trainers, train secondary school teachers

Asian Development Bank (ADB): $27.1 (81%)

Royal Government of Cambodia (RGC): $6.3 (19%)

Total Project Cost: $33.40 (100%)

This list of activities matches the cost estimate coding (COSTAB)

Activities and Milestones (MS)

1.1.1 Prepare Education Law and dissemination posters for printing

1.1.2 Print Education Law and posters

1.1.3 Disseminate printed materials

1.2.1 Prepare TOR and establish task force

1.2.2 Document review and consultation completed

1.2.3 Prepare policy document and submit for approval

1.2.4 Prepare and issue sub-decree

1.2.5 Prepare annual reports on policy implementation

1.3.1 Establish a Technical Working Group and prepare TOR

1.3.2 Review current structure and functions of the MOEYS at all levels

1.3.3 Prepare report with an action plan

1.4.1 Develop an institutional development plan with a clear vision

1.4.2 Develop an education research capacity

1.4.3 Enhance staff professional capacity

1.4.4 Review and develop planning and management training programs

1.4.5 Develop outreach support to build professional capacity of USS

1.5.1 Establish a Task Force to identify integrated MIS aims

1.5.2 Review EMIS system, strengthen data analysis and publications

1.5.3 Development of MOEYS FMIS system acceptable to MEF

1.5.4 Development of the HRMIS

1.6.1 Develop monitoring and quality assurance concept paper

1.6.2 Establish a quality assurance system for NIE and TTC

1.6.3 Expand, consolidate LSS and USS school self-assessment systems

2.1.1 Teacher training standards developed, approved, published (MS)

2.1.2 Develop and implement management-leadership training program

2.1.3 Review and revise curriculum content and methodology

2.1.4 Review and revise performance monitoring and trainee assessment

2.2.1 Conduct a participatory facilities needs analysis of targeted TTCs

2.2.2 Construct/upgrade facilities based on needs analysis

2.2.3 Provide library books, furniture and practical equipment for all TTCs

2.3.1 Develop criteria for materials that encourage equitable access

2.3.2 Upgrade facilities so that they are safe for female staff and students

2.3.3 Provide scholarships for female teacher trainees at NIE and RTTC

2.4.1 Conduct TNA and develop training plan for teacher trainers

2.4.2 Develop TOT training programs

2.4.3 Develop skills of teacher trainers to produce multimedia materials

2.4.4 Develop English program to improve competency of TTC staff

2.5.1 Conduct TNA of teacher qualification levels to prioritize needs

2.5.2 Develop plan to coordinate all project teacher training activities

2.5.3 Upgrade/retraining under qualified teachers in disadvantaged areas

2.5.4 Train USS teachers in basic English Language skills

2.5.5 Train USS teachers in use of multimedia materials including ICT

2.5.6 Train USS teachers in practical science

Inputs

Input by Financier

Asian Development Bank (ADB): $27.1 (81%)

Royal Government of Cambodia (RGC): $6.3 (19%)

Total Project Cost: $33.40 (100%)

Input by Expenditure Category:

Civil Works:

Learning Center Construction and Refurbishment: $2.88 million (2008-2012)

Dormitory Construction and Upgrading Sanitation

Facilities: $356,000 (20082009)

Design, Monitoring and Supervision of Civil Works: $157,000 (2008-2012)

Equipment and Furniture

MIS Equipment and Furniture: $1.26 million (2008-2009)

Learning Center Equipment and Furniture: $2.62 million (2009-2011)

PIM Equipment and Furniture: $142,000 (by year-end) 2008)

Learning Center Resources: $2.61 million (2009-2011)

Books and Instructional Materials

Student's Textbooks: $1.39 million (by September 2008)

Instructional Materials: $65,000 (by 2008)

Vehicles

Automobile Vehicles: $445,000 (by 2008)

Motorcycle Vehicles: $26,000 (by 2008)

Training, Workshops, and Technical Activities:

Materials: $702,000 (2008211)

Daily Subsistence Allowance: $6.96 million (2008-2012)

Travel Costs: $149,000 (20082013)

Other Costs for Training, Workshops, and Technical Activities: $1.0 million (2008-

2.6.1 Plan expansion of multi-media instructional materials facilities (MS)

2.6.2 Develop technical capacity through on-the-job training-MOEYS staff

2.6.3 Implement multi-media use in teacher training program components

2.6.4 Development of academic and administrative support systems

2.6.5 Monitor the effectiveness of multi-media for trainers and learners

3.1.1 Prepare TOR include quality issues and establish task force

3.1.2 Document review and consultation

3.1.3 Draft the Secondary Education Development Plan

3.1.4 Submit final draft

3.1.5 Prepare and issue directives

3.2.1 Strengthen secondary school networks, identify learning center schools

3.2.2 Develop leadership training program in SIP for USS directors

3.2.3 Develop competencies of school and network based trainers (TGL)

3.3.1 Upgrade secondary school facilities in remote areas

3.3.2 Provide USS merit-based scholarships for disadvantaged students

3.4.1 Learning centers designed & constructed in identified schools (MS)

3.4.2 Procure equipment, deliver and install at selected institutions

3.4.3 Run training courses on how to manage, use, maintain equipment

3.4.4 Follow up training and monitor effective use of delivered equipment

3.5.1 Develop and disseminate new selected USS Curriculum

3.5.2 Develop and disseminate new selected USS EVEP Curriculum

3.5.3 Develop and disseminate new selected LSS Curriculum

3.6.1 Negotiate direct purchasing agreement with PDH

3.6.2 Print books and store in PDH warehouse

3.6.3 Books delivered to schools by beginning of school year (MS)

3.7.1 Staff training: procurement preparation & specimen chapter writing

3.7.2 Train learning materials evaluators

3.7.3 Evaluation of new learning materials

3.7.4 Workshops on writing Instructional Materials and Teacher Guides

3.7.5 Textbooks, Instructional Materials placed on designated web pages

3.8.1 Develop assessment policy

3.8.2 Develop guidelines on assessment and exemplar instruments

3.8.3 Train MOEYS item bank writers and examination paper setters

3.8.4 Strengthen capacity of Examinations Office staff

3.8.5 Train PRD to monitor and evaluate the implementation activities

3.8.6 Train assessment trainers at provincial level

3.8.7 Train secondary teachers to conduct new assessment approaches

2013)

Scholarship Schemes: $1.33 million (2008-2012)

Consulting Services for Technical Assistance (TA)

TA Consulting Services –International: $4.87 million (2008-2013), 203 person months

TA Consulting Services –National: $664,000 (20082013), 304 person months

TA Consulting ServicesSupport Costs: $55,000 (20082013)

Consulting Services for Project Implementation and Management (PIM)

PIM Consulting Services –International: $1.46 million (2008-2013), 61 person months

PIM Consulting Services –National: $132,000 (20082013), 60 person months

PIM Consulting ServicesSupport Costs: $512,000 (2008-2013)

Incremental Recurrent Costs: Incremental Staff Input: $1.14 million (2008-2013)

O&M of Civil Works and Equipment: $415,000 (20082013)

O&M of Vehicles: $535,000 (2008-2013)

PMU/TUs Operations: $1.47 million (2008-2013)

APPROACHES TO CONSULTATION APPENDIX 3

Steering Committee

Task Force

Technical Working Groups

Focus Groups

Stakeholder Groups included in Consultation Process

Central Level Consultations

MOEYS Line Departments

Finance

Planning Personnel Inspectorate

TTD

PRD

PDH

GSED Examinations

PED Information and ASEAN Affairs

Provincial Level Consultations

POE

PTTC / RTTC

District Level Consultations

DOE

Project Level Consultations

CESSP

CBE

ESDPII ISMEC

Development Partner Consultations

World Bank

USAID

JICA

UNICEF

EU

Institution Level Consultations

NIE / TTCs

Schools -Primary -LSS

-USS

Field visits to relevant institutions

NIE

PTTCs/RTTCs Schools

POE

DOE

Consultation Process

Analysis and Review Phase

1st National Workshop

Core Output List of Proposed Interventions

Project Reports

Inception Report

Interim Report

Consultant Reports

Project Design

2nd National Workshop

Core Output

DMF Matrix

Project Reports

Draft Feasibility Report

Final Feasibility Report

Consultant Reports

1. Introduction

Demand for additional teachers is projected for the lower secondary and upper secondary levels in the Kingdom of Cambodia for the 2007-2015 period. Although the focus is on lower secondary and upper secondary levels, the projections for primary levels will also be presented due to its transitional features.

Enhancing education quality requires a set of multi-faceted and inter-related interventions. These include, among other things, efficiency and timeliness of decision-making, teacher training and re-training, remuneration system, curriculum development and textbook provision, valid and reliable assessment of the achievement of students and the performance of schools, provision of good and well-supported computer systems to enhance learning and teaching programmes and infrastructure (such as school buildings and classrooms, furniture, teaching aids, and an efficient and effective mechanism for collecting data). In this context, the current projections are intended to serve as a planning tool during the design phase of the Project to improve education quality in the Kingdom of Cambodia. It is important that the projections be updated when the assumptions vary from those used in the current projections.

Due to the fact that no allocation (time and budget) was available to gather primary data, the current projections have been derived from available secondary data sets, including:

Education Statistics and Indicators for School Years 2004/2005 and 2005/2006

published by the EMIS Centre, MOEYS' Department of Planning; Master Plan to Implement the Policy for Curriculum Development 2005-2009; Education Strategic Plan 2006 -2010; Education for All (EFA) 2003 - 2015; and Education Sector Support Program (ESSP) 2006-2010.

These projections were also validated via discussions with POE & DOE staff, and school site observations in Takeo and Kompong Chhnang Provinces. The projection method was also discussed and benefited from works carried out recently by the provincial staff planning and deployment specialists of the ADB-financed ESDP II 20

2. Data Limitations and Assumptions

Reviews of different data sets mentioned above indicated that there is a great degree of inconsistency, and projections vary considerably. For example, the enrolment projections in EFA, ESP document and the Master Plan differ in the range of minus 260,000 to plus 147,000 pupils during the period 2006-2010. From the PPTA team's perspectives, it is obvious that the underlying purposes and assumptions produce different sets of figures. But it is essential that the assumptions be realistic.

In practice, projections of the demand for teachers can be based on a great number of variables, not solely on enrolment projections. In the current projections, we project teacher demand based on projected annual enrolment by educational levels, target pupil - class ratio (PCR), attrition rate, teacher turnover rate 21, and teacher retirement rate. Specific quantitative

20 Mr. Rod Williams and Mr. Prak Polla are highly appreciated for their generous sharing of views.

21 The teacher turnover rate takes into account the shortfall of teaching staff based on number of teacher months of sickness, maternal leave, unpaid leave for private reasons, as well as deaths during any of the school year in the examined period.

and qualitative assumptions are attached to relevant tables in the following sections.

As far as the elective subject system for Grade 11 and 12 is concerned, it would be practical to project teacher demand on a subject basis. However, it is not possible due to the uncertainty what the system will bring about when it comes to actual implementation. It is important to note that there will be a shortfall of teachers for high-demand subjects but it is not possible to plan well ahead (at least in the area of teacher training) due to the demand-ofchoices uncertainty. Also, the scale of upper secondary schools in Cambodia is not large enough to be able to achieve synergies (i.e., economies of scale) in teacher capacity utilization and other resources as it may be the case in other places. Best practice shows the good things that the elective subject system does to the national economy, but the application of this system needs two pre-conditions: (i) scale of schools large enough to achieve synergies; and (ii) a user willingness to pay strong enough to recover at least operating costs. Both pre-conditions are not in existence in Cambodia and will take time for them to be established such that the elective subject system works in a sustainable manner. In this regard, the elective subject system for Grade 11-12 is not resource efficient in the short term and this policy issue may need to be revised.

3. Results of Projections

Primary School Teacher Demand Projections

Based on the assumptions as mentioned above, 'conservative' projections are produced and presented in Tables 1-3 and details can be found in Annexe 1 and 2.

As indicated in Table 1, at the primary education level, total teachers needed for the period from now to 2015 will be 30,384 primary teachers, if the all assumptions hold and other things being constant. In particular, the total new primary teachers needed are broken down as follows: 2,346 teachers for 2006/07, 1,462 teachers for 2007/08, 2,401 teachers for 2008/09, 3,891 teachers for 2009/10, 4,309 teachers for 2010/11, 4,423 teachers for 2011/12, 4,121 teachers for 2012/13, 3,830 teachers for 2013/14, and 3,600 teachers for 2014/15.

Table 1 - Primary School Teacher Demand Projections

\a Enrolment figures are derived from various prevailing policy documents

\b Use actual figures as of year end 2006

\c No of primary school teachers by year end 2006 was 50,378

\d Teacher Turnover Rate (sickness, maternal, unpaid leave, and deaths) is similar to the one used for primary schools by the Department of Planning

\e Teacher retirement rate is similar to the one used for primary schools by the Department of Planning

LSS Teacher Demand Projections

LSS teacher projections are produced in two scenarios: (i) Scenario 1 - Based on pupil - class ratio and weekly teaching hours per teacher; and (ii) Scenario 2 - Based on staff norms. The two scenarios yield different results. Scenario 1 indicates a total teacher demand of 43,217 and scenario 2 a total teacher demand of 39,797. Mean variance between the two scenarios is 380 or just less than 1% of the total projected number of teachers in any of the two scenarios. In this regard, averaging of the projected figures in both scenarios would make the projections LSS teacher demand more precise.

Table 2 presents the projected demand for teachers at the lower secondary school level. It indicates a total shortfall of 41,507 lower secondary teachers from 2007 up to 2015. Annual additional LSS teacher demand is broken down as follows: 8,428 teachers for 2006/07, 4,880 teachers for 2007/08, 2,292 teachers for 2008/09, 2,125 teachers for 2009/10, 2,106 teachers for 2010/11, 3,899 teachers for 2011/12, 5,518 teachers for 2012/13, 6,313 teachers for 2013/14, and 5,947 teachers for 2014/15.

Table 2 – Annual Additional LSS Teacher Demand Projected in Two Scenarios

Scenario 1 - Based on pupil - class ratio and weekly teaching hours per teacher

Scenario 1 - Based on staff norms

USS Teacher Demand Projections

USS teacher projections are produced in two scenarios: (i) Scenario 1 - Based on pupilclass ratio and weekly teaching hours per teacher; and (ii) Scenario 1 - Based on staff norms. The two scenarios yield different result. Scenario 1 indicates a total teacher demand of 37,272 and scenario 2 a total teacher demand of 34,907. Mean variance between the two scenarios is 263 or just less than 0.8% of the total projected number of teachers in any of the two scenarios. Again, averaging of the projected figures in both scenarios would make the projections of USS teacher demand more precise.

Table 3 outlines the projected demand for teachers at the upper secondary school level. It indicates a total shortfall of 36,090 upper secondary teachers from 2007 up to 2015. Annual additional LSS teacher demand is broken down as follows: 4,763 teachers for 2006/07, 2,328 teachers for 2007/08, 2,913 teachers for 2008/09, 3,748 teachers for 2009/10, 4,337 teachers for 2010/11, 3,814 teachers for 2011/12, 3,852 teachers for 2012/13, 4,098 teachers for 2013/14, and 6,237 teachers for 2014/15.

Table 3 - Annual Additional USS Teacher Demand Projected in Two Scenarios

Scenario 1 - Based on pupil - class ratio and weekly teaching hours per teacher

Scenario 1 - Based on staff norms

Combined LSS - USS Teacher Demand Projections

Teacher demand projections for both lower and upper secondary school levels are presented in Table 4. Summing up the projected demand in the lower and upper secondary school levels produces an aggregate shortfall of 77,596 secondary school teachers from 2007 to 2015. The annual additional secondary teachers required are as follows: 13,190 teachers for 2006/07, 7,208 teachers for 2007/08, 5,205 teachers for 2008/09, 5,873 teachers for 2009/10, 6,442 teachers for 2010/11, 7,714 teachers for 2011/12, 9,370 teachers for 2012/13, 10,410 teachers for 2013/14, and 12,184 teachers for 2014/15.

Scenario 1 - Based on pupil - class ratio and weekly teaching hours per teacher

Scenario 1 - Based on staff norms

Table 4 – Annual Additional Teacher Demand for both LSS-USS Projected in Two Scenarios

Annex 2 - USS Teacher Demand Projections – Detailed

Annex Table 2.1 - USS Enrolment Projections

\a Enrolment figures are based on various prevailing policy documents

TEACHER DEMAND PROJECTIONS

Annex Table 2.2Scenario 1USS Teacher Demand Projections based on

a Number of USS teachers by year-end 2006 was 6,941 \b Attrition rate of 1.08% includes deaths and job terminations

Use actual figure

Table 2.3Scenario 2USS Teacher Demand Projections

\a Based on the new curriculum policy, 1.955 teachers per class for Grade 10

Based on the new curriculum policy, 2.067 teachers per class for Grade 11 and 12

Number of USS teachers by year-end 2006 was 6,941

ORGANISATIONAL CHART OF THE MINISTRY OF EDUCATION, YOUTH AND SPORT

ADB (2006) Kingdom of Cambodia: preparing the education quality improvement project Technical Assistance Report (Project Number 38559) August

Cambodian Basic Education Project (2004) Report on the collection of baseline and performance data for the Cambodian basic education project August

Cambodian Basic Education Project (2006) Report on capital equipment grants to teacher training centres/provincial offices of education February

Cambodian Basic Education Project (2004) Report on the collection of baseline and performance data for the Cambodian basic education project August

CESSP (2006) Summary of Baseline Assessment Results Phnom Penh September

CESSP (2006) Student Achievement and Education Policy: Results from the Grade Three Assessment October

MOEYS (1994) Baseline Assessment of Student Achievement in Khmer and Mathematics in the Primary Schools Phase 2 Phnom Penh October

MOEYS (1995) Baseline Assessment of Student Achievement in Khmer and Mathematics in the Primary Schools Phase 3 Phnom Penh April

MOEYS (1996) Baseline Assessment of Pupil Achievement in Khmer and Mathematics in the Primary Schools Phase 2 Phnom Penh August

MOEYS (2002) Impact Study Phase 3: Grade Three Implementation Study 2001 Phnom Penh

MOEYS (2004) Policy for curriculum development 2005-2009 December

MOEYS (2004) Policy and strategies on information and communication technology in education in Cambodia Phnom Penh December

MOEYS (2004) Policy for curriculum development 2005-2009 December

MOEYS (2005) Education sector support program 2006-2010 Phnom Penh December

MOEYS (2005) Education sector performance report Phnom Penh December

MOEYS (2005) Education strategic plan 2006-2010 Phnom Penh December

MOEYS (2006) Introduction to Basic Education Curriculum Standards Phnom Penh

September

MOEYS (2006) Gender mainstreaming strategy in education 2006-2010 October

MOEYS (2006) Gender policy November

MOEYS (2006) Master Plan on the implementation of policy for curriculum development

2005-09

MOEYS (2006) Quality standards and indicators for gender mainstreaming in education

October

MOEYS/UNICEF (2005) Expanded basic education programme (EBEP) (Phase 11) 20062010 Phnom Penh October

RGC (2003) Education for all 2003-2015 national plan Phnom Penh May

RGC (2004) Rectangular strategy for growth, employment, equity and efficiency in Cambodia

Phnom Penh

RGC (2005) National strategic development plan Phnom Penh January

RGC (2005) Strategic framework for decentralisation and deconcentration reforms Phnom Penh

RGC (2006) Policy on Life Skills Education Phnom Penh August

World Bank (2005) Cambodia education sector support project PAD Report No.

29921-KH March 2005

SELECTED EDUCATION STATISTICS AND INDICATORS APPENDIX 10

Selected Education Statistics (2006-2007)

Selected Education Indicators (2006-2007)

Projected Trends in External Assistance

1. Total external funding to the education sector for the period 2005–2010 is estimated at US$ 327.6 million, with US$ 97.2 million actually spent in 2005, US$ 100.1 million in 2006, and US$ 130.3 million projected for 2007–2010. The total funding is financed by 124 donor organizations through 324 outstanding projects. Of the total projected financing for the 2005–2010 period, 29% is expected to come from UN agencies, 26% from international NGOs, 15% from bilateral agencies, 8% from international organizations, 4% from local NGOs, 2% from research institutes, and 17% from other sources. Although funding amount is aggregated, the Asian Development Bank, the World Bank, the EC, and the UN agencies are among the biggest donors to the country's education sector. Summary figures are provided in Chart 1 below.

Chart 1 - Development Partner Budget by Type of Donor Organization: 2005-2010

(US$ 000; %)

Local NGOs, $14,296, 4%

International Organisations, $26,447, 8%

Bilateral Donors, $46,181, 14%

Research Institutes, $7,965, 2%

UN Organization, $91,588, 29%

Others, $55,166, 17%

International NGOs, $85,927, 26%

Source: MOEYS Department of Planning, Education Aid Project Database in Cambodia 2006

2. In terms of annual budget allocation and disbursement, 29.7% of total budget was actually disbursed in 2005, 30.5% estimated in 2006, and it is projected that the remaining will be disbursed in the following proportions: 18.7% in 2007, 10.9% in 2008, 6.4% in 2009, and 3.8% in 2010. This projection has not taken into account further annual commitments (and disbursements) by the donor community to Cambodia at annual Donor

Consultative Group Meetings.

3. With regard to budget by sub-sector, total 2005-2010 budget is allocated as follows: 34.2% for primary education quality and efficiency, 9.9% for non-formal education expansion, 8.3% for facility expansion; 6.8% for continuous teacher education; 6.6% for capacity building, 6.5% for higher education quality, efficiency and equitable access; 3.7% lower secondary education access, quality & efficiency; 3.4% for secondary scholarship for the poor; 3.3% for upper secondary education access, equitable access; 2.9% for early childhood education, 1.9% for core instructional materials; 0.6% for strengthened monitoring systems; 0.6% for education service efficiency, 0.2% for youth and sport development, and the remaining 10% is allocated for other sub-sectors. Details are presented in Table 1.

4. It is noted that allocated investment in (lower and upper) secondary education access, quality & efficiency accounts for just 7.1% of total budget versus that of 34.2% for primary education quality and efficiency. In this regard, more funding should be earmarked to improve the quality of secondary education due to its significant social returns from this subsector. To this end, ADB's focus in the EEQP is well justified.

5. By geography, donor budget for 2005-2010 is distributed in a balanced proportion taking account of population, poverty severity, and other economic and demographic indicators. The distribution is also observed to be balanced between non-disadvantaged and disadvantaged provinces. It is indicated that the budget for Phnom Penh accounts for 18% of the total 2005-2010 budget. However, this high proportion is due to the fact that allocations to line ministries are aggregated in this category, rather than Phnom Penh as a normal administrative unit. Detailed geographical distribution is outlined in Table 2.

Responding to Future Funding Requirements

6. MOEYS has endorsed the national Education Strategic Plan (ESP) 2006-2010. The required funding to successfully achieve the ESP objectives is estimated at US$ 864 million for the 2006-2010 period. Annual projected funding required is as follows: US$ 140.7 million (16.3%) for 2006, US$ 162.4 million (18.8%) for 2007, US$ 172.9 million (20%) for 2008; US$ 188 million (21.8%) for 2009, and US$ 200 million (23.1%) for 2010 (Table 3).

Table 3 - Funding Required to Finance ESP Expenditure 2006-2010 (US$ million)

Source: MOEYS Education Strategic Plan 2006-2010

7. Although Cambodia's economic growth prospect is bright with high projected GDP growth rate, public revenue, mainly from tax collection, will not be capable of funding the implementation of ESP 2006-2010. Continued donor support is needed and ADB grant under the EQEP will significantly support the ESP implementation process.

MAJOR EXTERNAL ASSISTANCE IN CAMBODIA FOR THE APPENDIX 12 SCHOOL EDUCATION SECTOR

Project TitlePeriodSource of Funding

Cambodia Education Sector Support Programme (CESSP)

20052010 World Bank loan World Bank grant RGC contribution

AmountProject Objectives and Achievements

US$ 8 million US$ 20 million US$ 2 million

Total US$ 32 million

Enable equitable access to education school construction scholarships

Support education quality improvement in-service and pre-service training leadership training school Community relations establish a national assessment system

Support to higher education capacity building minor building works library improvement

Cambodia Basic Education (CBE) 20042007 USAIDUS$ 7.1 million Capacity building Strengthened monitoring systems Continuous teacher education Core instructional materials Lower secondary education access, quality and efficiency

Primary education quality and efficiency

Second Education Sector Development Project (ESDP II) (Includes TVET)

Total US$ 33.6 million

Expanding lower secondary education opportunities

400 lower secondary school buildings staff development

Expanding upper secondary education opportunities

24 upper secondary school buildings

25 new upper secondary schools staff development refurbishment 25 upper secondary schools

Demand driven community-based skills training (TVET)

TEACHER TRAINING INSTITUTIONS AND ANNEXE 13

STRUCTURE OF TEACHER TRAINING PROGRAMMES

Distribution of RTTCs and PTTCs by Province

Provinces with RTTC and PTTC

Kampong Cham

Battambang

Takeo

Kandal

Prey Veng

Provinces with neither RTTC nor PTTC

Kep

Oddar

Meanchay (d)

Pailin

Koh Kong (d)

Mondolkiri (d)

Provinces with RTTC only

Phnom Penh

Provinces with PTTC only

Steng Traing

Preah Vihea

Ratanakiri (d)

Kratie

Kampong Thom

Pursat (d)

Svay Rieng

Siem Reap

Bantea Meanchey

Kampot

Sihanoukville

Kampong Speu

Kampong Chnang

Provinces categorised in the Education Statistics and Indicators 2004/2005 (MOEYS Planning Department, 2005) with more than 7 percent of schools categorised as disadvantaged 22 are marked (d), the highest percentage being 12 percent disadvantaged schools in Oddar Meanchay. Provinces with neither RTTC nor PTTC will utilise the Resource Centre (RC) as a mini-PTTC in accordance with the ESP 2006-2010.

Structure of Pre-Service and In-Service upgrade Teacher Training Programmes

TEACHER TRAINING INSTITUTIONS AND ANNEXE 13

STRUCTURE OF TEACHER TRAINING PROGRAMMES

Entry examination for new students:

- TTC Directors attend another TTC

- POE attends entry exam

Registration to sit the entrance examination for RTTC / PTTC / NIE is heavily oversubscribed. In some subjects only 2% of students who sit the exams will pass the entrance exam for admission.

TEACHING PRACTICE

Practical Teaching Evaluation Criteria:

- classroom management

- activities for teaching and learning

- lesson planning and timetable

- relationships with students, other teachers, school director and parents

Practical Teaching is organised in schools closest to TTC

Two lecturers supervise 20 students in accordance with MOEYS guidance (CHECK)

20-30 students in each USS school

10-12 students placed in smaller schools

Standards and Assessment of Newly Qualified Teachers

Each student has: an annual score practical teaching assessment final examination

TEACHER TRAINING INSTITUTIONS AND ANNEXE 13 STRUCTURE OF TEACHER TRAINING PROGRAMMES

Final TT Examination:

- prepared by PTTC

- examiner from TTD attends

- correction of papers in TTD

Assessment of Newly Qualified Teachers

Each student has:

o an annual score

o practical teaching assessment

o final examination

In-Service Courses

Final TT Examination:

o prepared by PTTC

o examiner from TTD attends

o correction of papers in TTD

Entry examination for new students:

o TTC Directors attend at another TTC than their own

o POE attends entry exam

The in-service teacher training programs are driven by project initiatives such as the implementation of curriculum standards and the new curriculum for Basic Education Grade 1-9. In-service teacher training does not have national coverage which is appropriate in some instances such as teacher training for teachers of ethnic minority groups, but indicates a gap in provision when coverage should be national such as introduction of the new curriculum. In-service training includes upgrade training of PS teachers to LSS teachers and training and contract teaching. Trainers are staff from PES, GSED, PRD and TTD

Examples of short in-service courses provided by development partners and NGOs:

o 2 seminars held on gender mainstreaming for gender – integration of gender into CFS initiative

o ICT course – 2 x 6 days

o 3 day training at RTTC for 3 staff from PTTC to disseminate the new school curriculum. The process of implementation was described - when the staffs return from the 3 day training the PTTC will have to follow the new curriculum.

o Teacher Group Leader training

o Bird Flu and HIV/AIDS

o Road Safety

Qualifications of PTTC staff

Teaching qualifications – variable between institutions. Minimum Grade 12+2. Majority of lecturers have Batchelor Degree

A summary of all TTC staff qualifications is needed

Basic TTC staff upgrades training:

1) knowledge of PTTC management

2) use of new curriculum and textbooks for schools

3) use of TT guide for primary TT / LSS TT / USS TT

4) skills for teaching adults

5) specialist subject knowledge

Linkages to the Country Poverty Analysis

Contribution of the sector or sub sector to reduce poverty in Cambodia: Cambodia, with an estimated population of 14 million and per capita income of US$ 385, is one of the poorest countries in the world (UNDP, 2006). Despite good progress in many areas, poverty is an overwhelming phenomenon particularly in rural areas. 36% population in the country live under the total poverty line (MoP, 2006). Poverty matters affect educational attainment, particularly the basic education of the country’s disadvantaged population in rural, remote and ethnic minority areas. Studies (MoEYS, 2006; Velasco, 2002) reveal a linkage between poverty and the higher drop out rates among girl students at secondary level of education in the disadvantaged areas of Cambodia. Compared to boys, girls’ enrolment rate at secondary education is much lower. Girls are more disadvantaged by educational opportunity cost compared to boys (UNIFEM, et, al, 2004).

Enhancement of education quality has direct impact on poverty reduction. Quality education can improve skills, efficiency and productivity of human resources. It can widen life chances pursuant with diversified livelihood options. The major development policy, plan and program of the Royal Government of Cambodia (RGC) target education as one of the important vehicles for poverty reduction in the country. For example, the fourth part of the Rectangular Strategy particularly targets enhancing human resources with high technical and scientific skills that effectively respond to the labor market.

Low enrolment of boys and girls in disadvantaged areas in secondary education is a major challenge for the RGC as it works to achieve basic education for all by 2010. Poverty is one of the underlying causes of their low enrolment. Addressing the poverty issue in relation to children’s enrolment in secondary education can potentially reduce the poverty incidence among families in disadvantaged areas in the future.

Poverty Analysis Targeting Classification :General intervention

The overall financing of the education system is still heavily reliant on households’ private contributions to both direct and indirect education costs. Although various surveys vary widely in their estimation of these costs, even conservative socio-economic surveys report that on average, unofficial monthly school fees are KR3,500 (US$ 0.9), KR8,000(US$ 2) and KR10,200 (US$ 2.5) per student at primary level, lower secondary and upper secondary level respectively. These do not include costs for other incidentals such as uniforms, stationery, etc.

The Cambodia Socio-Economic Survey 2004 indicates that educational expenses per student for one school year include school fees, tuition, textbooks, other school supplies, gifts to teachers and contribution to building funds. Households estimate educational expenses at KR 50,000 (US$ 12.5) for pre-school and primary school students, KR 393,000 (approximately US$ 100) for secondary schools, KR 1.1 million (US$ 275) for technical/vocational schools and KR 2.1 million (US$ 525) for universities.

Recent surveys also highlight that households (especially more affluent households in urban centers) are willing to pay substantially for high quality education. The Cambodia 2004 SocioEconomic Survey also indicated that parents are willing to pay 10 times as much for quality private schooling, particularly at the secondary level. It appears that parents judge that the

greater guarantee of access to competitive post-secondary education (especially the elite university faculties) represents a worthwhile investment.

However, this largely unregulated private financing of education has resulted in a potential education/poverty trap. For example, the representation of the poor is much greater in the primary student population than in the secondary or tertiary student population. This is particularly true of Cambodia, where 20per cent of primary students but only 2 per cent of upper secondary students are drawn from the poorest 20 per cent of the population. In contrast, 61 per cent of the upper secondary students in the country come from the richest 20 per cent of the population. The representation of the poor in tertiary education is zero, while the richest 20 per cent of the population accounts for 57 per cent of tertiary education.

Another contributing factor in this education/poverty trap is the demand for school age children, often girls, to contribute to household chores and household income generation. For example, in a recent survey, it was estimated that of the 1.6 million school age children not attending full time, around 25 per cent stated household income/work responsibilities as the primary factor. In contrast, only 8 per cent of the sample cited lack of suitable, accessible education provision as the primary barrier.

Factors that hinder the attainment of basic education of boys and girls in disadvantaged areas are poverty, distant location of school, lack of dormitories for girl students in school, lack of teachers particularly from ethnic minority groups, and gender bias in school system. Girls compared to boys are more hindered with these factors.

With the given importance of basic education to reduce poverty, the lower secondary education program (MoEYS, 2005) and the Cambodia Enhancing Education Quality Project target is to increase net enrolment rate of children of disadvantaged families/areas in secondary education. The lower secondary education program target is to increase net enrolment rate in grades 7-9 to 39% in 2008 from 26.1% in 2004/5. The Cambodia Enhancing Education Quality Project targets to increase net admission rate of girls and children of disadvantaged areas in secondary education to 80% by 2020 from 73% in 2006/07.

These programs and projects provide scholarship to boys and girls of disadvantaged families/areas at secondary education to reduce the cost burden on their families. A number of strategies will be undertaken in this project to tackle the impacts of poverty and other associated factors on educational attainment of children in disadvantaged areas. Strategies include: creation of enabling environment such as establishment of dormitories for girl students, stipend for girl students at upper secondary education and female teacher trainees, improvement of facilities in school and teacher training institutions so female students and teacher trainees feel school secure and comfortable; sensitize instructional materials and gender awareness training for writers of instructional materials to encourage equitable access of boys and girls from disadvantaged areas in education; and monitoring and evaluation on the implementation of the gender mainstreaming policy connected to an EMIS review.

Gender and Development Strategy to maximize impacts on women

A number of strategies have been planned and designed to maximize the project impact on women and girls. Strategies include: creating enabling environment for girls’ education, information dissemination, and stipends for girl students. Gender-responsive outputs and indicators have also been set in the Design and Monitoring Framework. In compliance with the strategies a number of activities have been proposed to make sure that women and men

are equally benefited from the project assistance. Activities which have particularly been designed and planned for equal benefits of women and men include (i) develop criteria for instructional materials for teacher training courses that encourage equitable access, (ii) upgrade teacher training institution facilities to ensure that they are safe and suitable for female staff and students, (iii) provide scholarships for 500 female teacher trainees at NIE and RTTC, (vi) develop criteria for instructional materials for secondary schools that encourage equitable access, (vi) upgrade all secondary school facilities in remote areas to ensure they are safe and suitable for female staff and students, ( (vii) improve data collection, monitoring and evaluation of provisions for female students,(xii) provide scholarship for 4,000 disadvantaged students to study at USS.

Has an output been prepared? Yes No

The following gender-responsive/gender related outputs have been set in the Design and Monitoring Framework. (i) increased enrolment in teacher training programs of female and students from disadvantaged areas, and (ii) increased enrolment in secondary schools of girls and children from disadvantaged areas.

References

1. Ministry of Planning (2006) A Poverty Profile of Cambodia 2004, Ministry of Planning, Phnom Penh

2. MoEYS (2006) Gender Policy in Education 2006, Ministry of Education, Youth and Sports (MoEYS), Phnom Penh.

3. Royal Government of Cambodia (2006) National Strategic Development Plan 20062010, Royal Government of Cambodia, Phnom Penh.

4. UNDP (2006) Human Development Report 2006, UNDP, New York.

5. UNIFEM, WB, ADB, UNDP and DFID/UK (2004) A Fair Share for Women: Cambodia Gender Assessment, UNIFEM, WB, ADB, UNDP, DFID/UK, Phnom Penh

6. Velasco, E. (2002) Institutionalizing Gender Equity in Education in Cambodia: Commitment, Policy and Action, Report prepared for UNICEF/SIDA, Phnom Penh.

7. MoEYS (2006) Gender Mainstreaming Strategy in Education 2006-2010, Ministry of Education , Youth and Sports (MoEYS), Phnom Penh

8. MoEYS (2005) Education Sector Support Program 2006-2010, Ministry of Education, Youth and Sports (MoEYS), Phnom Penh

9. Cambodia Socio-Economic Survey, National Institute of Statistics 2004

ELEMENTS OF INSTITUTIONAL DEVELOPMENT AND PROCESSES OF CAPACITY BUILDING

ELEMENTS OF INSTITUTIONAL DEVELOPMENT

Three key elements of institutional development are: human capacity development, institutional strengthening and development of information flows and networks.

Human Capacity Development: To develop system capacity, first of all it is essential to develop the skills and knowledge of those working in the education system.

Institutional strengthening: It is equally important to develop the systems, within individual institutions. This includes organisation and structure, management systems, effective working practices, quality assurance, monitoring and evaluation, IT systems, and personnel systems (including pay and conditions). Without effective systems it is very difficult for those undergoing training and development to implement what they have learnt.

Information flows and networks: Planning, and effective implementation of plans, can only be effectively achieved if there is a wide sharing of information, an important aspect of successful institutional development. This will be addressed by encouraging participatory planning and discussion, and through regular contact of staff while on the job. Institutional leadership can be a critical factor in the attempt to improve performance. Technical assistance will include the development of competencies related to strategic planning, consensus building, and communication of objectives and implementation of plans.It is also necessary to create institutionalised mechanisms for information flow.

PROCESSES OF CAPACITY BUILDING

A number of processes are well recognised as ways of approaching organisational and institutional capacity building. It is important that appropriate processes are selected to achieve specific outcomes. It is also important to ensure the building of capacity in individuals is clearly aligned to organisational outcomes and priorities. Attendance on courses and participation in overseas programmes should be on an organisational needs basis and on-the-job instruction should be directly relevant to a person’s role. It is important to remember that capacity building takes time, is often a two way process and has to be relevant for the individual counterpart, counterpart groups and counterpart institutions.

Counterparts

All projects identify individuals, or specified positions, to be counterparts to international specialists. On many projects the international specialist and a national specialist are teamed with one or more counterparts to develop relevant skills, knowledge and attitudes, as well as personal systems and processes to enhance work performance. At the same time the national specialist and the counterpart have a responsibility to teach the adviser about local conditions and environment and assist with project implementation by provision of advice and support.

On-the-job instruction

On-the-job (day-to-day) instruction is considered by many to be the best way for people to learn how to do the job and to develop their skills related to their technical responsibilities. The process is considered cost-effective as well as the best way to support learning, as it is timely, directly relevant to the job, and ensures work continues while the person is learning.

Learning agreements

To overcome the mindset that on-the-job learning is of low value and to set targets learning agreements can be used. These agreements based on joint work plans of the specialists

and the counterparts; identify the learning to occur and the means by which the learning would be achieved.

In-house short training courses, external short courses, and seminars

While on-the-job training is very useful, off-the-job training allows people to learn in an environment where they are not continually disturbed and gives the opportunity to earn certificates. Well-planned in-house training courses are generally supported by the participants’ current knowledge and experience and follow adult learning principles. The courses provide opportunities for application and interaction. Successful in-house courses must be timed to coincide with implementation needs. Seminars have a role in capacity building when information needs to be shared with a broad range of people. External short courses need to be carefully targeted and the external suppliers selected carefully. They need to be targeted at organisational needs and learning and reinforced with follow-up from advisers or managers to ensure lessons learned are being implemented.

Manuals

Manuals are designed for several purposes: as a record of newly designed policies and processes, as a source of information for new staff; and as a source of information for the development of individual capacity. One has to be careful that consultants do not produce them because they are named as milestone requirements. Participation of counterparts and other colleagues is essential in their development. A manual is of the most value when it is developed specifically, with counterparts, for the local environment early in the project.

Working groups, task forces, formal and informal meetings

Working groups and task forces can be used to build individual capacity in problem solving and participative decision-making. In these cases individuals also develop a better understanding of policies and processes. Regular formalmeetings in the work place offer a forum for capacity building throughout the life of a project. Informal meetings such as those during tea breaks and during field missions give an opportunity for learning through open discussion.

Coaching and Mentoring

Coaching is a term usually applied to the development of non-technical skills such as staff supervision and management, through one-to-one advice. Mentoring assists managers and staff to develop their own personal strengths and to pursue their own goals.

Overseas scholarships, study tours and conferences

The importance of overseas scholarships in developing professional skills, conceptual ability and self-learning skills can be considered critical to the long term sustainability of new ideas and processes introduced by projects. Participation in the programmes and the timing of them needs to be carefully controlled if the country is to benefit from them. Study tours should be used with care, balancing motivation with capacity building. They are useful to expose teacher managers and teacher educators to new ideas in relatively short periods of time. Selection of the right candidates is critical and should be aligned to the information and exposure needs of the organisation. Participants must have the personal capacity to learn from the experience and the willingness to share the learning with their follow officers on their return. Carefully selected conferences can be appropriate if clearly connected with institutional and individual performance goals.

An overall appraisal of the ICT requirements of the Kingdom of Cambodia identifies key areas for potential development including: EMIS developments, ICT provisions for schools, training for teachers and others in using these facilities, and use of other ICT facilities to explore further training

Various opportunities for using other media available for training and development purposes (such as television and radio) also exist should the available finance for this project allow.

It is essential to ensure that, in any ICT development strategy, the various elements are cohesively planned. In other words, training matches provision and visa versa, equipment provision is planned with infrastructure developments, training in new pedagogies relates to ICT provision etc. NIDA is a central organisation in such matters – particularly (but not exclusively) the development of a national infrastructure.

It is also essential for all funding agencies present or future, (including the Government of Cambodia) to work closely together to ensure that duplication either of information gathering or of provision does not occur.

Another issue in the long-term, is sustainability. It is understood that at this moment in time, the Government of Cambodia could not effectively instigate substantial ICT development initiatives without external support. However, planning for the future should take account of the time limited nature of external sources of funding and plan with this in mind. At some point funding will become predominantly the responsibility of the Cambodian government and account should be taken of this in planning and resourcing.

Overriding these are the current infrastructure issues facing Cambodia. These can generally be listed as a lack of:

Universal power provision to a majority of institutions

Universal connectivity to a communications network

Sufficient funding to provide the necessary equipment

Sufficient funding and expertise to provide appropriate training for teachers and others

Recurrent funds to develop and maintain even simple systems

However, it is clear that there is a national and international willingness to make progress and to improve Cambodia’s international competitiveness by reducing the technology gap with more developed countries through increased student exposure to ICT alongside curriculum development and teacher training. This project is one of the ways of starting a process to achieve that. The possible interventions cannot take account of the overall longterm needs of the education (school and administrative) groups as these are beyond the scope and capability of this project to achieve.

Table A.{#}.1: Detailed Cost Estimates by Expenditure Category (as of 14 July 2007)

(KR Million)(US$ '000)

DETAILED COST TABLES APPENDIX 17

Table A.{#}.2: Detailed Cost Estimates by Financier (as of 14 July 2007)

Management Set up Project management in Directorate of General Education and 3

Units Establish Project Performance Management system (including base-line survey) Mid-Term Review

1 Education System Management and Development

Education Law disseminated

Prepare Education Law and posters for dissemination

Print Education Law and posters

Disseminate printed materials

1.2 Policy framework for teacher education and teacher management completed

Prepare TOR and establish task force

Document review and consultation completed

Prepare policy document and submit for approval

Prepare and issue sub-decree

Prepare annual reports on policy implementation

The organization and function of MOEYS at central, province and district levels reviewed

Establish a Technical Working Group and prepare TOR

Comprehensive review of the current structure and functions of the

Prepare report with an action plan for approval

Strengthened National Institute of Education

Development of an institutional development plan with a clear vision

Development of an education research capacity

professional capacity enhanced

Review and development of planning and management training programs

Distance support to upper secondary teachers

Information systems strengthened at all levels

up a Task Force to plan full integration of EMIS with HRMIS, and

and strengthen the EMIS system of analysis and reporting, including gender

of MOEYS FMIS system acceptable to MEF

Development of the HRMIS

Monitoring and quality assurance systems in place and functional (schools and teacher education institutions)

Clarify the functions of key departments in monitoring and quality assurance

Establish a quality assurance system for teacher education institutions

school self-assessment systems for lower and upper secondary schools

COMPONENT 2 Teacher Professional Development

Output 2.1 Management and professional capacity of teacher training institutions enhanced

2.1.1 Teacher training standards developed, approved and published 2.1.2 Implement management leadership training for TTC Directors and Deputy Directors 2.1.3 Implement review procedure for teacher traini ng curriculum content and methodology

2.1.4 Revise system of teacher training performance monitoring and assessment

Output 2.2 Teacher training institutions (NIE, RTTC, PTTC) facilities upgraded

2.2.1 Conduct facilities needs analysis of targeted institutions

2.2.2 Construct / upgrade dormitories and learning centres based on facilities needs analysis

2.2.3 Provide library books, furniture and practical equipment for new facilities

Output 2.3 Increased enrolment in teacher training programs of disadvantaged groups

Develop criteria for equitable access in teacher tra ining instructional materials

Upgrade teacher training institution facilities suitable for female staff and students

Provide scholarships for female teacher trainees at NIE and RTTC

Output 2.4 Skills and competencies of teacher trainers in the pre-service teacher training program improved

Conduct training needs analysis and develop a tr aining of trainers plan

Develop TOT training programs for prof essional development of trainers

Develop skills of teacher trainers to produce ICT multimedia instructional materials

Develop English Language teacher training to improve c ompetency of TTC staff

Output 2.5 Teaching skills and competencies of secondary school teachers improved

Conduct training needs assessment of teacher qualification levels

Develop teacher training plan of all teacher training activities

Upgrade/retraining for under qualified teachers in disadvant aged areas

Train USS teachers in basic English Language skills

Train USS teachers in use of mult imedia instructional materials including ICT

Train USS teachers in practical science

Output 2.6Multi-media modality for teacher education developed

Develop expansion plan of multi-media facilities (ICT)

Develop multi-media instructional materials capacity for teacher training

Implement multi-media in selected components of teacher training programs

Develop TTC systems for academic and administrative s upport for Distance Learning

Monitor distance education course effectiveness for trainers and learners

COMPONENT 3 Strengthening Secondary Education

Output 3.1 Secondary Education Development Plan completed

Prepare TOR with focus on quality issues and establish task force

Document review and consultation

Draft the Secondary Education Development Plan

Submit final draft

Prepare and issue sub-decree

IMPLEMENTATION SCHEDULE

Output 3.2 Secondary school networks, management + improvement planning introduced.

3.2.1 Strengthen secondary school net works and identify learning center schools

3.2.2 Develop leadership and improvement planning training for school directors

3.2.3 Develop competencies of school and net work based trainers (TGL)

Output 3.3 Increase secondary school enrolment of children from disadvantaged areas

3.3.1 Upgrade secondary school facilities for female staff and students safety and security

3.3.2 Provide scholarships for bright and disadvantaged students to study at USS

3.4 Secondary school facilities including ICT, laboratories and libraries upgraded

Output

3.4.1 Learning Centers designed and constructed in identified schools

3.4.2 Procure equipment, deliver and install at select ed institutions. 3.4.3 Run training courses on how to manage, use and maintain the equipment 3.4.4 Follow up the training and monitor the effe ctive use of the delivered equipment

Output 3.5 Curriculum including ICT developed and in use for secondary schools 3.5.1 Develop and disseminate nationwide new Upper Secondary Curriculum, complementing other programs

3.5.2 Develop and disseminate new Upper Secondary Curriculum for EVEP subjects

3.5.3 Develop and disseminate nationwide new Lower Secondary Curriculum, complementing other programs

3.6 Upper secondary schools countrywide have textbooks and teacher's guides

Negotiate direct purchasing agreement with PDH

Output

Print books and store in PDH warehouse

Books delivered to schools by the beginning of school year Output

PRD management capacity enhanced

Training of PRD staff in procurement preparation and specimen chapter writing

Train materials evaluators

Hold new learning materials evaluation session

Conduct workshops on writing IM and TGs

Place all textbooks and instructional materials on designated web pages Output 3.8 Assessment of secondary school student achievement on curriculum standards

Develop assessment policy

Develop guidelines on standards-based assessment and exemplar assessment instruments for secondary

Train MOEYS item bank writers and examination paper setters

Strengthen capacity of Examinations Office staff adminis tration using ICT

Train PRD to monitor and evaluate implement ation of standards-based assessment

Train assessment trainers at provincial level

Train secondary teachers to conduct assessment of curriculum standards and SBA

Project Information

Country The Kingdom of Cambodia

Name of Borrower The Royal Government of Cambodia

Project Name Enhancing Education Quality

Loan/Grant or TA Reference ……-CAM

Date of Effectiveness …/…./2008

Amount $ (total from all financiers) $33.40 million

Of which Committed, $ $27.02 million

Executing Agency Ministry of Education, Youth and Sports

Approval Date of Original Procurement Plan …/…./2008

Approval of Most Recent Procurement Plan TBD

Publication for Local Advertisement 23 TBD

Period Covered by this Plan TBD

Procurement Thresholds, Goods and Related Services, Works and Supply and Install

Procurement Methods

To be used above/below ($)

ICB More than $1,000,000

NCB works Less than $1,000,000 but more than $100,000

NCB goods Less than $500,000 but more than $100,000

Procurement Thresholds, Consulting Services

Procurement Methods

To be used above/below ($)

Individuals At least $200,000

Quality- and Cost-Based Selection (QCBS)

List of Contract Packages in Excess of $100,000, Goods, Works and Consulting Services

ICB = international competitive bidding; NCB = national competitive bidding, QCBS= quality- and cost-based selection; TBD = to be determined.

Number of contracts depends on the scope of work. PMU/TUs will award contracts for individual works or they may combine various works in awarding contracts. This will be determined in the first year of the Project implementation.

Source: Financial Analyst estimates

23 Includes general procurement notice, invitations to pre-qualify and to bid, calls for expressions of interest.

24 Multiple packages may be clubbed together for procurement to effect price efficiencies. The mode of procurement will depend on the size of the package.

25 In terms of procuring existing textbooks and instructional materials that are in copyright, direct purchasing method will be used due to the fact that such materials are available from only a single proprietary source, namely Publishing and Distribution House (PDH). This procurement method is also known as single or sole sourcing.

Detailed Procurement Packages

ICB = International Competitive Bidding; NCB = national competitive bidding, QCBS= quality- and cost-based selection; TBD = to be determined.

Number of contracts depends on the scope of work. PMU/TUs will award contracts for individual works or they may combine various works in awarding contracts. This will be determined in the first year of the Project implementation.

Source: Financial Analyst estimates

26 In terms of procuring existing textbooks and instructional materials that are in copyright, direct purchasing method will be used due to the fact that such materials are available from only a single proprietary source, namely Publishing and Distribution House (PDH). This procurement method is also known as single or sole sourcing.

TERMS OF REFERENCE FOR CONSULTANTS APPENDIX 20

A. Institutional and Policy Development Specialist (international team leader 36 person-months, national deputy team leader 60 person-months)

1. The team leader and the deputy team leader will have extensive experience of education management, institutional development, planning and policy development. Specific responsibilities will include: (i) coordination of international and national consultant inputs; (ii) providing advice to the project management unit; (iii) advising the PMU on undertaking a base-line study; (iv) supporting a high-level task force in undertaking a review of the organization and functions and of MOEYS that includes provincial and district structures; (v) supporting the departments of teacher training and personnel in developing a teacher education and management policy; (vi) supporting Department of Planning and the Planning Office of the Department of Secondary Education in preparing a Secondary Education Development plan; (vii) assist in the planning of the national workshop to disseminate the Education Law

B. Institutional Planning Specialist (international 5 person-months, national 5 person-months)

2. The institutional planning specialists will have complementary national and international experience of institutional planning at the teacher education and/or university level. Working with the National Institute of Education management team the specialists will assist the team: (i) organise a workshop for NIE staff that introduces various ways in which other countries are institutionally organised to support education decision-makers; (ii) to undertake the participatory development of an institutional development plan that involves NIE staff and other relevant stakeholders; (iii) to use the process as a capacity building exercise; and (iv) to produce a document detailing the plan (v) review and recommend further development of the NIE management and training program.

C. Education Research Specialists (international10 person-months, national 10 person-months)

3. The education research specialists will have a proven record of working within an operational and action research modality and of building individual and institutional research capacity. Based at the National Institute of Education (NIE) the specialists will assist the NIE:

(i) to establish a research unit; (ii) to train Research Unit staff to manage and conduct research activities; (iii) to write TOR for an appropriate study visit to a selected research institution; (v) to assist in the selection of operational studies to support EEQP implementation; (vi) to design, implement and report on 6 operational studies.

D. Professional Development (NIE) Specialists (4 international - 6 person-months each, 4 national 6 person-months each)

4. The professional development specialists will have identified experience of working within teacher education institutions to build academic and professional capacity. The specialists will assist in building NIE professional capacity in specific academic areas. In their respective academic areas they will assist task teams in: (i) conducting a participatory review of the current curriculum; (ii) upgrading the professional capacity of the lecturing staff with an emphasis on content knowledge integrated with pedagogy; (iii) training staff in subject-based action research activities to improve lecturer’s classroom practice: (iv) preparing self-instructional materials for distance education.

E. USS Outreach (NIE) Specialists (international 12 person-months, national 12 person-months)

5. The upper secondary outreach specialists will have a background related to the provision of support at a distance from the teacher beneficiaries. In collaboration with counterpart staff and key stakeholders, the specialists will work with the NIE management team: (i) to strengthen outreach activities at NIE; (ii) to identify 2 key staff to attend an overseas programme; (iii) to select an appropriate institution to train the 2 key staff; (iii) to develop training and support plan for research unit staff; (iv) to identify pilot programmes of outreach support to USS teachers linked to secondary school networks.

F. Quality Assurance Specialists (international 6 person-months, national 6 personmonths)

6. The quality assurance specialists will have a sound understanding and experience of current trends in quality assurance at school and teacher education institutions The specialists will support a task force that represents key stakeholders related to monitoring and maintenance of quality assurance: (i) to clarify the functions of the key departments in monitoring and quality assurance; (ii) to determine the roles of various offices at central, provincial, district, commune and school levels; (iii) to strengthen lower and upper secondary school self-assessment systems; (iv) and establish a quality assurance system for lower and upper secondary schools.

G. Information System Specialists (EMIS) (international 12 person-months, national

12 person-months)

7. The specialists will have extensive international understanding and experience of conceptual, software and hardware requirements of information systems in an educational setting and the ability to work with a team. Working with an interdepartmental group from the Department of Information and ASEAN Affairs, Department of Planning, Department of Finance and the Department of Personnel the specialists will support a task force with a wider constituency: (i) to identify the objectives of a fully integrated education information system connecting EMIS, HRMIS, FMIS and other existing MOEYS information systems; (ii) to develop an implementation for system connectivity; (iii) to review the EMIS system and strengthen analysis of data; (iv) to team with Department of Personnel to improve HRMIS functionality and capacity at the provincial and district levels; (v) to team with the FMIS specialists when appropriate to ensure integration; (vi) to prepare handbooks as necessary.

H. Information System Specialists (FMIS) (international12 person-months, national 12 person-months)

8. The specialists will have appropriate finance-related qualifications and experienced to work in the MOEYS Department of Finance and to liaise with the Ministry of Economics and Finance, as well as a full understanding of information systems. The Working with the Department of Finance the specialists will: (i) support a review of the current FMIS; (ii) identify the aims and objectives of interventions to further develop the FMIS; (iii) ensure that the interventions are compatible with the proposed integrated education information system connecting the EMIS, HRMIS, FMIS and other existing MOEYS information systems (iv) assist in developing procurement specifications for ICT equipment and furniture; (v) team with the EMIS consultants as necessary.

I. Institutional and Teacher Professional Development Planning Specialists (international 7 person-months, national 9 person-months)

9. The institutional and teacher professional development specialists will have a back ground of quality assurance and assessment in the context of teacher training institutions. The specialists in collaboration with national consultants, counterpart staff and key stakeholders, the specialists will liaise with the Teacher Training Department and teacher training institutions to: (i) assist with the development and dissemination of Teacher Training Standards; (ii) undertake a review and recommend revisions to the system of QA and performance monitoring used in teacher training institutions, including assessment of trainee teachers and professional development of trainers.

J. Teacher Professional Development Planning Specialists (international 6 personmonths, national 8 person-months)

10. In collaboration with national consultants, counterpart staff and key stakeholders, the specialists will work with the Teacher Training Department to: (i) undertake a baseline study of teacher qualification levels for prioritization of training needs; (ii) contribute to the development of a teacher training plan to coordinate all project teacher training activities; (iii) support the implementation of a procedure for systematic review and revision of the preservice teacher training curriculum content and training methodology.

K. Training of Teacher Trainers Specialists (international 6 person-months, national 13 person-months)

11. In collaboration with national consultants, counterpart staff and key stakeholders, the specialists will build the capacity of teacher trainers in teacher training institutions and in upper secondary schools. The consultant will: (i) conduct a training needs analysis and assist in the development of a training plan for professional development of TTC trainers and national trainers; (ii) assist in designing and delivering programs for professional development of teacher trainers; (iii) assist in designing and delivering programs to develop skills and competencies of school and network based trainers (TGL).

L. Upgrade Training for Secondary School Teachers Specialists (international 5 person-months, national 10 person months)

12. In collaboration with national consultants, counterpart staff and key stakeholders, the specialists will support the teacher training institutions to prepare and deliver a training program to upgrade/retrain under-qualified lower and upper secondary school teachers.

M. Management Leadership Training Specialists (international 10 person-months, national14 person-months)

13. In collaboration with national consultants, counterpart staff and key stakeholders, the specialists will work closely with the teacher training institutions including NIE and with upper secondary schools to: (i) develop and implement a management leadership training program for TTC Directors and Deputy Directors to support the implementation of the Teacher Education Policy, Teacher Training Standards, the Teacher Education plan, the revised procedures for teacher training curriculum review and the revised procedures for quality assurance and performance monitoring in teacher training; (ii) develop and deliver a leadership training program in school improvement planning for LSS and USS Directors to support the implementation of the Secondary Education Development Plan, the establishment of secondary school networks and the school self assessment mechanisms for quality assurance and performance monitoring in secondary schools.

N. Facilities Needs Analysts (international 4 person-months, national10 personmonths)

14. In collaboration with counterpart staff and key stakeholders, the analysts will: (i) conduct a facilities needs analysis of targeted teacher training institutions to determine the priorities for dormitory and learning centre construction and rehabilitation; (ii) conduct a facilities needs analysis of targeted secondary schools to determine the priorities for dormitory and learning centre construction and rehabilitation; (iii) advise on the resource requirements for the new and upgraded facilities.

O. Multimedia Instructional Materials Developers (international 12 person-months, national 19 person-months)

15. In collaboration with national consultants, counterpart staff and key stakeholders, the materials developers will work with the Teacher Training Department, the Pedagogical Research Department and the Information and ASEAN Affairs Department to support: (i) the development of a comprehensive plan for expansion of multimedia instructional materials facilities (ICT resources) and skills required for development of some components of teacher training programs; (ii) the technical capacity development of MOEYS staff required for expansion in the use of multimedia instructional materials for teacher training through onthe-job training in course development; (iii) implementation of multimedia instructional materials in selected components of teacher training programs, for example through the production of DVD/CD/video materials; (iv) the development of corresponding systems for academic and administrative support for multimedia course delivery in teacher training centers; (v) the monitoring of the effectiveness of multimedia in course components for trainers and learners; (vi) the national specialist will also assist in the regular updating of the designated website to provide information on project progress, reports and instructional materials.

P. English Language Teacher Training Specialists (international10 person-months, national 20 person-months)

In collaboration with national consultants, counterpart staff and key stakeholders, the specialists will work with the Teacher Training Department, the Regional and Provincial Teacher Training Colleges, and the upper secondary schools: (i) to develop an English Language teacher training program to improve competency of trainers in teacher training institutions; (ii) to develop an English Language basic skills program to improve the competency of upper secondary school teachers.

Q. Multimedia Instructional Materials Teacher Trainers (international 6 personmonths, national 8 person-months)

In collaboration with counterpart staff and key stakeholders, the multimedia instructional materials teacher trainers will work at regional teacher training centers and upper secondary schools: (i) to develop skills of teacher trainers and key trainers from relevant departments to produce instructional materials for teacher training; (ii) to train upper secondary school teachers in the use of multimedia instructional materials including ICT.

R. ICT Technical Support to Learning Centers (international 4 months, national 12 person-months)

In collaboration with counterpart staff and key stakeholders, the consultant will work with the Information and ASEAN Affairs Department and will liaise with the teacher training institutions and secondary schools where learning centers are located to: (i) provide guidance and advice on design of learning centers; (ii) draw up procurement specifications and installation requirements for multimedia and practical learning laboratories; (iii) train

learning center managers in resource management including use and maintenance of multimedia equipment; (iv) prepare training manuals for effective management of learning centers including guidelines for training of librarians, computer technicians and laboratory technicians; (v) provide training for learning centre managers in business planning and management to enable the learning center to become a self-financing community resource.

S. Upper Secondary School Curriculum Development Specialists (international 12 person-months, national 12 person-months)

In collaboration counterpart staff and key stakeholders, the specialists will work with the Pedagogical Research Department to assist with planning and delivery of secondary school curriculum development. The consultant will: (i) conduct a review of the curriculum development needs and draft an implementation schedule; (ii) carry out a capacity analysis matrix and plan for capacity development and task allocation; (iii) design and manage a curriculum development work plan and manage the curriculum development teams; (iv) plan, design and facilitate capacity building workshops; (v) liaise with other specialist areas of the project (assessment, teacher professional development, textbooks and ICT); (vi) ensure that issues of gender and equitable access are reflected; (vii) advise PRD staff on options and cost effectiveness in media use; (viii) incorporate action research into the curriculum design; (ix) develop appropriate QA systems for monitoring curriculum implementation.

T. Upper Secondary School EVEP Curriculum Specialists (international 12 personmonths, national 12 person-months)

In collaboration with counterpart staff and key stakeholders, the specialists will work with the Pedagogical Research Department to assist with planning and delivery of the EVEP curriculum. The consultant will: (i) map out EVEP capacity and training possible models for vocational education at USS level; (ii) develop and evaluate models for engaging outside the formal education sector; (iii) develop assessment of vocational education in conjunction with the assessment and teacher education project work; (iv) develop guidelines and advisory and counseling material for teachers to use with students in selecting EVEP modules; (v) pilot, evaluate and plan further development of the EVEP curriculum.

U. Lower Secondary School Curriculum Development Specialists (international 12 person-months, national 12 person-months)

In collaboration with counterpart staff and key stakeholders, the specialists will work with the Pedagogical Research Department to assist with planning and delivery of the lower secondary school curriculum. The consultant will: (i) review and build on the curriculum development work already done with USAID support to complete the curriculum development of lower secondary school subjects; (ii) identify and evaluate existing examples of LLSP modules used in Cambodia and elsewhere; (iii) develop guidelines for an LLSP curriculum relevant to Cambodia; (iv) develop methodology for sharing of LSSP modules and experiences between lower secondary schools; (v) liaise with French and English teaching bodies and publishers in relation to availability of existing materials; (vi) develop curriculum standards for Grade 9 in the subjects to be developed.

V. Specialist in Student Assessment and Examinations Reform (international 10 person-months, national 10 months)

In collaboration with counterpart staff and key stakeholders, the specialists will: (i) advise on the development of a national assessment policy; (ii) develop guidelines on standards-based assessment and advise on the development of exemplar assessment instruments and

examination questions; (iii) train Examinations Office staff and item writers in development of standards-based examinations; (iv) train PRD staff in monitoring and evaluating the implementation of standards-based assessment; (v) train six teams of regional trainers in standards-based assessment and implementation of assessment training programs; (vi) provide ongoing support to regional trainers as they train technical group leaders in schools; and (vii) monitor and evaluate the implementation of the nationwide training program

W. Subject Specialists in Student Assessment and Examinations Reform (national 17 specialists x 3 person-months = 51 person-months)

In collaboration with other consultancy team members, counterpart staff and key stakeholders, the specialists will: (i) develop exemplar assessment instruments and examination questions; (ii) develop a training programme and train six teams of regional trainers in standards-based assessment and implementation of assessment training programs; and (iii) provide ongoing support to regional trainers as they train technical group leaders in schools

X. Gender and Equity Specialists (international 3 person-months, national 3 personmonths)

The specialists will work with the Gender Working Group to support gender and equitable access initiatives throughout the scope of the project. The specialists will (i) assist in the preparation of a half-day national workshop linked to the national workshop to disseminate the Education Law; (iii) develop criteria for assessment of instructional materials so they encourage equitable access in secondary schools and teacher training institutions; (iv) collect and assess instructional materials used in teacher training institutions; (v) collect and assess instructional materials used by teachers in secondary schools; (vi) develop a training manual and conduct training for writers of instructional materials on equitable access of children from disadvantaged areas; (vii) team with the civil works specialist to identify and recommend on the facilities of teacher training institutions and upper secondary schools that need to be upgraded for safety and security of female students and teachers; (viii) develop specific eligibility criteria for scholarship for female teachers in NIE and RTTC and disadvantaged students at USS and (ix) follow up on the disbursement of scholarships.

Y. Editing, Textbook Evaluation and Learning Materials Specialist (international 3 person-months)

The specialist will have three tasks each focusing on different sets of PRD staff. For the first task the specialist will work with four counterpart staff of the Pedagogical Research Department to develop the capacity of the PRD team to produce model materials for commissioning textbooks from independent publishers. This will include creating tight editorial briefs, physical specifications, outlines and specimen chapters in all subjects from the new curricula. These documents will be used by the MOEYS as the procurement specifications. The consultant will assist the PRD in giving independent publishers and writing groups transparent information about the MOEYS

process

of commissioning textbooks and prepare and deliver a workshop for interested parties in Cambodia that will provide information and advice to publishers on the commissioning process. For the second task the specialist will assist the PRD in preparing criteria for selection of an independent book evaluation panel and advise MOEYS and its contractors on procedures for selecting the panel members. Once identified the consultant will provide training to the book selection panel on how to apply those criteria and assist the PRD in organizing the first evaluation of materials submitted by independent publishers or writing groups. For the third task the specialist will build the capacity of selected PRD staff to write teacher's guides and teacher

training materials relating both to the subjects in the new curriculum and to good teaching practice.

Z1. Financial Planning, Procurement, and Monitoring Specialist (international 14 person-months)

The consultant will work closely with the team leader and assist the PMU/TUs in ensuring efficient project implementation. Prior experience with and associated knowledge of ADB procurement, disbursement and monitoring procedures will be a must. Specific responsibilities include, but not be limited to, the following: (i) review the original cost estimates and assist the PMU/TUs in preparing an annual overall procurement plan for all goods, works, and services to be procured under the Project, specifying allocation of tasks and responsibilities at each stage of procurement; (ii) assist the PMU/TUs in preparing tender/bidding documents based on ADB’s standard bidding documents, bid advertisements, and bid evaluation reports in accordance with the procurement guidelines; (iii) provide advice and technical support (including assistance in drafting documents for ADB endorsement) to the bid evaluation committee formed by the Executing Agency in conducting bid opening, preparation of the minutes of bid opening, and bid evaluations; (iv) monitor procurement, record keeping system, and related correspondences with ADB with regard to bidding, bid evaluation, and contracting; (v) advise the executing and implementing agencies on the signing of contracts, ensuring of proper documentation, and forwarding of signed contracts to ADB; (vi) assist the PMU in supervise implementation of all conditions and obligations stipulated in contracts; (vii) assist the PMU/TUs in preparing consolidated financial reports; and (viii) train local staff in the PMU procurement and financial staff to build capacity and ensure sustainability after the consulting service contract.

Z2. Civil Works Specialist (international 11 person-months)

The specialist will assist relevant PMU staff in: (i) preparing and costing a design for the civil works package (i) monitoring procurement connected with civil works; (ii) supervising the construction of learning centers at the targeted teacher education institutions; (iii) supervising the construction of learning centers at the targeted upper secondary schools; (iv) supervising the construction or rehabilitation of dormitories at teacher training institutions; (v) supervising the upgrading of facilities for female students at secondary schools; (vi) and related correspondences with ADB with regard to bidding, bid evaluation, and contracting.

1. The economic analysis is consistent with ADB’s Guidelines for the Economic Analysis of Projects and incorporates best-practice dimensions in economic analysis of interventions in the education sector. This economic analysis will address two important dimensions, including (i) benefit - cost analysis; and (ii) fiscal impact and sustainability analysis.

A. Economic and Policy Justifications

2. Public investment at all levels of education in Cambodia has been substantial during the last seven years. Increased government and household spending on education at all levels has had direct impact on access and participation. During this same period, enrolments in primary schools, lower secondary schools and upper secondary schools have been increased substantially. The Government’s long term goal is to develop a sustainable and competitive economy in Cambodia. The Rectangular Strategy reflects the Government's determination and commitment in this regard. One of the four important pillars of the rectangular strategy is capacity building and human resource development, in which enhancing education quality has been identified as the key to achieving the long term goal of developing a sustainable and competitive economy. The Rectangular Strategy has been acting as a base guide for establishing (and revising) the Education for All (EFA) plan, education strategic plan (ESP), education sector support program (ESSP), all of which are consistently directing towards achieving long term EFA goals (2015) by insuring equitable access to basic and post basic education, enabling quality and efficiency improvement, and capacity building for decentralization.

3. While significant resource and attention have been directed to all education levels particularly the basic level (Grade 1-9), improved access and quality in the education sector as a whole remain critical. This is even more critical for the secondary education level, at which students must obtain adequate knowledge and skills to align with the increased demand (in number and quality) of the labor market 27. The socio-economic, political, cultural, and labor market climate of the country calls for improvement of education quality, including pre-service and inservice teacher training, physical school conditions and facilities, curriculum development and teaching methods, adequate provision of textbooks for students and instructional materials for teachers, as well as efficient education management systems, i.e., quality staff and infrastructure at all education administrative levels.

4. Cambodia became the 148th member of the World Trade Organization (WTO) on 13 October 2004. Like all least developed countries (LDC), Cambodia's objective of WTO accession is to seek to leverage the benefits of trade. In this area, Cambodia is not only the first LDC to have acceded to the WTO, but also a champion in mainstreaming trade in development strategies. As one of the fastest growing garment exporters over the last eight years, trade is at the centre of Cambodia's Socio-economic Development Plan, Poverty Reduction Strategy, and the Governance Action Plan to ensure Cambodia develops a sustainable and competitive economy. To achieve a sustainable growth path and to survive in a globally competitive environment, Cambodia needs to build a dynamic human

27 According to Cambodia Socio-Economic Survey, 2004, only 4 percent of the labor force in 2004 has upper secondary or post secondary education.

resource base with adaptable skills. Investment under the Project consists of improving quality, promoting access and participation, as well as increasing efficiency and effectiveness of education management through pre-service and inservice teacher training, physical school conditions and facilities, curriculum development and teaching methods, adequate provision of textbooks for students and instructional materials for teachers, scholarship and incentive schemes, improved fiscal transfers, management training, and improvement of education management systems. The Project is expected to yield substantial economic, social, and institutional benefits.

B. Benefit – Cost Analysis Labor Market Demand

5. Total population at year-end 2006 was estimated at 14 million people, increasing from 11 million people in 1994. With an average annual growth rate of 1.8 per cent, the population is projected to increase to over 15 million people in 2010. GDP per capita is US$ 385 in 2005 increased from US$ 288 in 2000. About three fourths or 74.2 per cent of the employed population work in agriculture, 18.8 per cent in the service sector and only 7 per cent work in the manufacturing sector. Only 0.2 per cent of workersis employer (or self-employed) and 13 per cent is paid employees. Most of the workers are own-account workers or unpaid family workers. Cambodia's labor force in 2006 is 7.6 million, or 54 per cent of the total population (14 million). As children aged 0-6 years are not considered to be economically active, and only small percentages of those aged 7-14 years are in the labor force, the labor force participation rate is higher when only older ages are considered. Thus, 65.5 per cent of the population aged 7 years and over and 83.7 per cent of the population aged 15 years and over are economically active.

6. The labor market in Cambodia continues to be predominantly unskilled, agricultural, or household workers. According to Cambodia Socio-Economic Survey, 2004, the educated and trained labor force comprised only 4 per cent of employed persons (at the technical professional level). The labor market will continue to increase by 4.0 per cent per annum, meaning that every year another 300,000 people will enter the labor market. These are young, often unskilled workers with limited experience, who live in rural, remote and often disadvantaged areas where land and non-farming jobs are rare. Those who will not be absorbed by the formal sector will continue to work in household enterprises. If the private sector does not develop significantly as planned by the Government, unemployment will increase, especially as Government owned enterprises and the agriculture sector employ fewer people, and because the absorptive capacity of the labor intensive, lowproductivity service sector is low. The Government, while reducing its monopoly in employment, has not invested sufficiently in re-training, which has been left to individual initiative.

7. The transition to a market economy, and rapid economic growth in the last seven years have raised the demand for skilled labor. Growth promises to be more labor intensive. Given its strong position and reputation in export processing, particularly garments and textiles, Cambodia can double its exports and create around 1.0 million manufacturing jobs in export sectors in the immediate future. To

be competitive, however, Cambodia must develop the high-technology sectors and upgrade its labor force. Secondary education is particularly important to foster the needed labor skills and the capacity to learn on the job while adapting to new technologies. Measures must mitigate the poverty and inequality that may worsen with increasing globalization. Cambodia’s comparative advantage is likely to be in sectors and enterprises that require relative shifts in the skill content of export manufacture, steady increase in labor-intensive products, and dramatic increase in science-based goods, including those that are technologically complex. An equally important issue recognized by the Government is to promote balanced development between the rich and poor/disadvantaged regions. A large number of recent programs (both Government and donor initiatives) have been directed to uplift the socio-economic conditions of the poor, remote, and disadvantaged regions. Thus, education aiming to improve labor skills for local economic development has been on the priority list.

Project Benefits and Economic Rates of Return

8. Economic benefits will potentially include high social returns from the Project investment to be obtained through (i) improvement in system efficiency through better infrastructure and personnel, and in allocation of resources; and (ii) improved productivity of USS graduates.

9. In terms of improvement in system efficiency through better infrastructure and personnel, and in allocation of resources, economic benefits will be achieved in a number of ways. Hereafter is a list of five major ways that the economic benefits will be realized. First, MOEYS staff, including provincial and district office staff, will receive technical assistance, training and support in planning, management, technical, and professional issues. They will be trained to strengthen their capacity to plan, manage, administer, and regulate the system. Second, activities designed to improve pre-service courses will directly and indirectly enhance quality of management and academic staff of NIE and TTCs, as well as teacher trainees, preparing them for a solid professional teaching career. Also, initiatives to improve in-service training will help enhance substantially the quality of the majority of secondary school teachers on the payroll. Third, upper secondary schools will be improved through capacity building for school management, school networking and school improvement planning. Fourth, the Project will support in improving physically and technically the management information systems (MIS) including educational MIS, financial MIS, human resource MIS, and school construction MIS. The synchronization of the existing MIS subsets will improve the monitoring and planning capacity of the MOEYS. This will facilitate timely and correct management decisions, which will reduce and/or minimize wastages from both capital and recurrent spending perspectives. Fifth, efficiency will also be enhanced through Project investment in new and rehabilitated infrastructure such as learning resource centers and dormitories, library books, learning equipment for TTCs and USS, USS textbooks, and instructional materials for USS teachers.

10. The economic benefits to be achieved as analyzed in the preceding paragraph will be derived from the internal system efficiency of the education system by reducing unit cost of producing a graduate. Table 1 presents the cost savings estimates. It is assumed that the cost savings is based on the minimum rate of 0.5

per cent of annual recurrent expenditure of the education sector and that such a savings will begin to yield in year 3 of the Project implementation. Based on these assumptions, average annual cost savings is US$ 0.98 million.

Table 1 - Expected Benefit from Cost Savings due to Increased System Efficiency

\a Annual recurrent expenditure of education sector is based on the Medium Term Expenditure Framework (MTEF) 2007-2010 and Financial Analyst estimates;\b Annual benefits are calculated based on a minimum 0.5% of annual recurrent expenditure of the education sector, beginning in Year 3 (2010) of Project implementation.

11. With regard to improved productivity of USS graduates, the Project is expected to contribute to the national effort to increase in the number of annual secondary school graduates (more precisely, upper secondary graduates) by financing improved access to and quality of education. Under the Project interventions, students in lower secondary and upper secondary schools, both currently and in the future, will be taught by better trained and motivated teachers, and hence lower repetition and dropout rates, and will have more relevant and employable attitudes, skills and knowledge. In this regard, the Project will directly improve the quality of outcomes and performance of graduates in the labor market. The Project will provide ways and means to raise academic standards and help improve the alignment between graduate skills and the labor market. Increased earning capacity and spending ability of low-income groups will help reduce poverty incidence in Cambodia.

12. Project economic benefits derived from the improved productivity of USS graduates is often called "productivity differential" - benefits from increased earnings or inflows. The quality enhancement measures are expected to increase earnings of new graduates based on better skills and knowledge that they will receive as a result from the Project investment. Benefits will come from increased earnings because better-qualified teachers, pedagogical approaches, equipment, facilities and infrastructure will help improve student performance and thus improve the quality of graduates and the labor force.

13. Expected benefits from productivity differential are also based on the expected minimum and is outlined in Table 2. Based on assumptions elaborated in

ECONOMIC AND SUSTAINABILITY ANALYSIS APPENDIX 21

Table 2, average annual benefit from productivity differential is estimated at US$ 8.62 million.

Table 2 - Expected Benefit from Productivity Differential

Notes on assumptions: (i) ‘Productivity differential’ is computed based on the number of projected Grade 12 graduates [Upper Secondary Education (USE) enrolment projections] multiplied by the differential earnings from the mean and median average income. The difference between the median and mean income is assumed to correctly reflect productivity differential; (ii) Mean income of US$ 385 as annual per capita income (based on NIS 2005 figure), median income of US$ 219 as annual per capita income, making a productivity differential of US$ 166 per annum; (iii) Assuming 80 per cent of Grade 12 graduates earn the "differential" by participating in the labor market; (iv) assuming a minimum 7 per cent of total annual benefit is due to Project; (v) Benefit begins to yield as from year 3; and (vii) Number of graduates is kept constant after year 2015 for benefit estimation purpose due to the fact that no more Project financing is replenished.

14. The approach used in the above benefit quantification is to estimate minimum benefit that one can expect from the proposed investment in enhancing education quality in Cambodia. Aggregated minimum benefit and cost for the Project are outlined in Table 3. Where possible the expected benefits have been summarized in monetary terms either as cost savings (such as producing the same output at a reduced overall cost) and increased earnings (such as producing more graduates who earn more due to better education and/or contribution to the local economy). In all cases, these benefits exclude externalities that accrue to the Project. Using a discount rate of 12 per cent as the economic opportunity cost of capital (EOCC), the economic analysis yield an economic internal rate of return (EIRR) of 22.4 per cent, a benefit/cost ratio (BCR) of 1.53 in the base case. The Project is evaluated as economically viable.

Table 3 - Benefit - Cost Analysis - Base Case

\a Benefit stream includes (i) annual cost savings due to increased system efficiency; and (ii) annual productivity differential; \b Costs are economic costs derived from financial costs applying a standard conversion factor (SCF) of 0.95 for the Kingdom of Cambodia.

15. A sensitivity analysis is conducted to test the robustness of the base case model. Five sensitive cases are examined: (i) benefit decrease 10 per cent; (ii) cost increase 10 per cent; (iii) benefit decrease 10 per cent and cost increase 10 per cent; (iv) benefit delay 1 year; and (v) benefit delay 2 years. The output of the sensitivity analysis is presented in Table 4.

Table 4 - Summary Sensitivity Analysis

value, the percentage change in a variable sufficient to reduce ENPV to zero

analysis is outlined in the Supplementary Appendix.

16. The EIRR is identified to be highly sensitive to the benefit delays. In case benefit delays 1 year, BCR is reduced from 1.53 to 1.20, EIRR is reduced from 22.4 per cent to 15.8 per cent, and ENPV is 49.9 per cent lower. In case benefit delays 2 years, BCR is reduced from 1.53 to 0.92, EIRR is reduced from 22.4 per cent to 10.3 per cent (or 1.7 per cent lower than the 12 per cent threshold), and ENPV is 92.2 per cent lower, suggesting that benefit delaying 2 years would drive the Project to being economically non-viable.

17. Based on this analysis, it is recommended that the MOEYS, the executing agency, follow closely the agreed Project implementation schedule to ensure Project benefits are realized as scheduled. It further implies that the factors delaying Project implementation should be well under control and minimized to ensure the Project economic viability and sustainability (as discussed in Section C).

C. Fiscal Impact and Sustainability Analysis

18. The fiscal impact of the Project is important as it helps assess the sustainability level. In practice, education projects often support recurrent expenditures as well as capital outlays, thus making the recurrent cost sustainability issue one of central importance for the economic analysis. The impact on the overall budget once the Project is completed often determines whether the Project objectives will be sustained in the long run. Key issues to be addressed include what impacts the investment in the Project have on fiscal indicators such as total annual budget, capital and recurrent expenditure for the education sector in Cambodia during and after the implementation period of the Project.

19. The Project has been designed bearing in mind the that recurrent costs should be minimized for the Government and the community. The improvement of the quality support systems under the Project is intended to reduce wastage, improve the internal efficiency of the education sector (with a particular focus on the secondary education level), and reduce the cost of producing a USS graduate in Cambodia. The incremental recurrent Project costs arise largely from increased access to secondary schooling through enhanced quality and relevance. The costs of civil works and learning facilities have been minimized by using efficient designs and maximizing the utilization of locally available resources and materials. Although new construction and rehabilitation works are being financed, sustainability is being ensured by the Government’s commitment to operate and maintain (O&M) after the Project implementation period.

20. Table 5 presents the Project financing plan (by financier and category) as well as the outlay of State budget for the education sector during the implementation period and projections for the period thereafter (to 2020). The fiscal impact and sustainability analysis evaluates the impact of the Project on the State budget. The total financial cost of the Project, inclusive of taxes, duties, contingencies, and interest charges, is US$ 33.40 million for an implementation period of 5 years. It is proposed that the Asian Development Bank will finance 80.9 per cent, and the remainder 19.1 per cent will be financed by the Government. Community contributions have not been taken into account due to the country-specific context. The analysis indicates that the Project will have negligible impact on the State budget for the education sector. The recurrent expenditure to be paid by the Government after the Project implementation is estimated to be US$ 1.47 million per annum and include incremental staff remuneration, O&M costs of civil works, facilities, equipment, and vehicles procured under the Project. It is indicated that the Project recurrent expenditure after Project implementation (2014-2020) will only account for an average of 0.58 per cent of annual recurrent expenditure allocated to the education sector during the 2014-2020 period. It is observed that this proportion will be much smaller than the threshold of 5.0 per cent (green-highlighted area in Table 5).

ECONOMIC AND SUSTAINABILITY ANALYSIS APPENDIX 21

Supplementary Annex – Benefit–Cost Analysis Tables

Benefit - Cost Analysis - Benefit Decrease 10% (USD

Benefit - Cost Analysis - Cost Increase 10%

ECONOMIC AND SUSTAINABILITY ANALYSIS APPENDIX 21

Benefit - Cost Analysis - Benefit Decrease 10%, Cost Increase 10% (USD

Benefit - Cost Analysis - Benefit Delay 1 Year (USD

ECONOMIC AND SUSTAINABILITY ANALYSIS APPENDIX 21

Benefit - Cost Analysis - Benefit Delay 2 Years