World Bank Documentdocuments.worldbank.org/curated/en/... · SOUTELE - Survey of Outcomes of Elementary Education SSC - Social Studies Center of the Education Ministry TBS - Textbook

Document ofThe World Bank

FOR OFFICIAL USE ONLY

Report No. 6279

PROJECT PERFORMANCE AUDIT REPORT

PHILIPPINES

THIRD EDUCATION (TEXTBOOK) PROJECT

(LOAN 1224T-PH)

June 27, 1986

Operations Evaluation Department

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

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FOR OFFICIAL USE ONLYTHE WORLD BANK

Washington, D.C. 20433U.S.A.

Office of Offecto-CeralOpeates Evalution

June 27, 1986

MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT

SUBJL-T: Project Performance Audit Report: Philippines Third Education(Textbook) Project (Loan 1224T-PH)

Attached, for information, is a copy of a report entitled"Project Performance Audit Report on the Philippines Third Education(Textbook) Project (Loan 1224T-PR)" prepared by the Operations EvaluationDepartment.

Attachment

This document has a restricted distribution and may be used by recipients only in the performance

FOR OFFICIAL USE ONLY

LIST OF ACRONYMS

BEE - Bureau of Elementary EducationBETDECCO - Basic Education Textbooks Development

Coordinating CouncilCDC - Curriculum Development CenterDHS - Development High SchoolEDPITAF - Education Development Projects Implementing Task ForceELC - Elementary Learning ContinuumIMC - Instructional Materials CorporationMECS - Ministry of Education, Culture and SportsMIS - Management Information SystemNEDA - National Economic Development AuthorityOBM - Office of the Budget ManagementOPS - Office of Planning ServicesPCSPE - Presidential Commission to Survey Philippine EducationPEM - Philippine Education ManagementPNC-LSC - Philippine Normal College Language Study CenterPRODED - Program for Decentralized Educational DevelopmentRSDC - Regional Staff Development CenterSOUTELE - Survey of Outcomes of Elementary EducationSSC - Social Studies Center of the Education MinistryTBS - Textbook Board SecretariatUP - University of the PhilippinesUPSEC - University of the Philippines Science Education Center

ThIs document hs a restricted distribution and may be used by recipients only in the performanceof their officisa duties. Its contents may not otherwise be dslad without World Smik autharintlan.


PHILIPPINES

THIRD EDUCATION (TEXTBOOK) PROJECT(LOAN 1224T-PH)

TABLE OF CONTENTSPage No.

Preface *******************************Basic Data Sheet ................................................... iiEv4luation Summary .............................................. v

PROJECT PERFORMANCE AUDIT MEMORANDUM

I. PROJECT BACKGROUND ....................................... 1

II. PROJECT IMPLEMENTATION AND OUTCOMES ...................... 3

Overview ............................................. 3Institutional Development ................................ 4Textbook Production and Distribution .................. 4Teacher Training ......................................... 6Physical Facilities .................................... 6Management Information System and Preinvestment Study .... 7The Bank's Role ........................ ................. 7Tertbooks and Student Achievement ....................... 8

III. MAIN ISSUES ............................... 9........... 9

Institutional Development ......... 0..................... 9The Private Sector ............................... ....... 9Costs ................................................ 10

Attachment I: Comments from the Borrower .......................... 13

PROJECT COMPLETION REPORT

Highlights ......................................................... 17

I. COMPLETION REPORT PREPARED BY THE GOVERNMENT .................. 19

A. Introduction and Background .............................. 19B. Project Design ........................................... 21C. Project Implementation ................................ 25D. Project Costs ......... .. * ** 49E. Outstanding Issues ............................... .. 55F. Conclusions .......................................... 56

II. OBSERVATIONS AND LESSONS LEARNED BY THE BANK .................. 57

Observations ............................................. 58Lessons Learned by the Bank .............................. 59

TABLE OF CONTENTS (Contd.)

Annexes

1. P.D. No. 687 Reorganizing the Textbook Board2. LOI No. 873 Transferring the Textbook Project from

EDPITAF to the Textbook Board3. MEC Order No. 27, s. 1981, Creating the Instructional

Materials Corporation Management Team4. Project Buildings and Textbook Warehouses by Location,

Size and Construction Cost5. Equipment Procured, by Type and Beneficiary Institutions6. Foreign and Local Consultants Engaged, by Field of

Expertise and Beneficiary Institution7. Fellowship Availment, by Area of Study and Beneficiary

Institution8. Estimated and Actual Project Cost, by Year and Type

of Expenditure

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PHILIPPINES


PREFACE

This is a performance audit of the Third Education Project in thePhilippines, for which a Third Window loan of USS 25.0 million was approvedin March 1976 and a Loan Agreement was signed in April 1976. The loanaccount, which became effective in July 1976, was zlosed on January 10, 1984when the last disbursement was made to disburse the loan completely exceptUS$270,000 which had been cancelled in March 1982.

The audit report consists of a Project Performance Audit Memorandum(PPAM) prepared by the Operations Evaluation Department (OED) and a ProjectCompletion Report (PCR) dated July 20, 1984. The PCR consists of two chap-ters: Chapter I was prepared by the Borrower, Chapter II by the East Asiaand Pacific Region Education Projects Department.

The PPAM is based on a review of material in Bank files, includingthe Staff Appraisal Report No. 945a-PH of February 27, 1976; the President'sReport No. P-1777-PH of March 4, 1976; the records of the Board discussion ofthis project on March 16, 1976; the Loan Agreement dated April 8, 1976; cor-respondence with the Borrower concerning this project; Bank reports on pre-ceding and aubsequent education projects in the Philippines; the PCR and dis-cussion with Borrower and Bank staff associated with this project. Selectedproject institutions were visited by an OED mission to the Philippines inDecember 1985.

The PCR has valuable project information which the PPAM supplementswith other information from Bank records and with comments on certain aspectsof implementation experience of this pioneering project. The OperationsEvaluation Department gratefully acknowledges the cordial cooperation accord-ed the OED mission by the Ministry of Education, Culture and Sports.

Following customary OED procedures, copies of the draft PCR weresent to the Government for comments in April 1986. Comments received havebeen taken into account in finalizing the report and are reproduced asAttachement I.

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PROJECT PERFOMANCE AUDIT REPORT

PHILIPPINES

THIRD EDUCATION (TEXTBOOK) PROJECT(LOAN 1224T-PR)

BASIC DATA SHEET

KEY PROJECT DATA

Appraisal Actual orEstimate Current Estimate

Total Project Cost (US$ million) 51.6 45.96/8Underrun (2) - 112

Loan Amount (US$ million) 25.0 25.0Disbursed 25.0 24.73Cancelled 0.27Repaid ) to 01/15/86 3.295 3.26Outstanding ) 21.705 21.47

Date Physical Components Completed June 1978 June 1983-in Months Since Loan Signature 27 87

Proportion Comptted by Above Date (2) 40/ 100Proportion of Time Overrun (2) - 222Date Software Components Completed Dec. 1979 Dec. 1981--in Months Since Loan Signature 45 69

Proportion of Time Overrun (2) 65/c 100Institutional Performance Good

Cumulative Estimated and Actual Disbursements(US$ million)

FY 77 78 79 80 81 82 83 84

(a) Appraisal Eat. 1.0 5.7 12.9 19.0 25.0 (25.0) (25.0) (25.0)(b) Actual 3.0 5.0 7.6 10.9 19.9 21.9 23.6 24.7(c) Actual/Estimate (2) 300 88 59 57 80 88 94 99

OTHER PROJECT DATA

Original Actual orItem Plan Revisions Estimated Actual

First Mention in Files 02/27/73Government's Application 08/14/73Negotiations 01/16/76Board Approval 03/16/76Date of Loan Agreement 04/08/76Effectiveness Date 06/06/76 08/06/76 07/29/76Closing Date 06/30/81 06/30/82; 06/30/83 06/30/83/dBorrower The Republic of the PhilippinesExecuting Agency Education Development Projects Implementing

Task Force (EDPITAF)Fiscal Year of Borrower July 1- June 30/eFollow-up Project Name/i Elementary Education Sector Loan

Loan Number Loan 2030-PHAmount (US$ Million) 100.0Date of Loan Agreement Augtt 21a 1981

/a See PPAK, par&. 24P Estimated on basis of supervision report dated July 18, 1978.

Te Estimated on the basis of over 17 million textbooks distributed comparedwith the target of 27 million textbooks.

/d Final disbursement was on January 10, 1984.,7e_ From 1977, the fiscal year was January I-December 31.7? The follow-on project was the Fourth EducatJ,)n Project, Loan 1374-PH, with

a US$25.0 million loan and Loan Agreement signed on March 25, 1977.

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MISSION DATA

Missicn Sent Month/ No. of No. of Staff Date ofby Year Weeks Persons Weeks Report

Identification Bank 12/74 1.0 2 2.0 01/--/75Preparation UNESCO 03/75 4.0 6 24.0 04/--/75Appraisal Bank 06/75 5.0 5 25.0 02/27/76

Total 51.0

Supervision 1 Bank 08/76 0.9 1 0.9 09/28/76Supervision 2 " 04/77 1.7 1 1.7 06/21/77Supervision 3 " 10/77 0.7 1 0.7 10/12/77Supervision 4 " 12/77 0.7 1 0.7 01/31/78Supervision 5 " 06/78 0.6 1 0.6 06/30/78Supervision 6 " 07/78 0.5 1 0.5 07/18/78Supervision 7 " 11/78 0.5 1 0.5 12/13/78Supervision 8 " 09/79 0.4 2 0.8 10/01/79Supervision 9 " 03/80 1.7 2 3.4 04/11/80Supervision 10 " 11/81 0.3 3 0.9 01/08/82Supervision 11 " 07/82 0.3 2 0.6 08/20/82Supervision 12 " 10/83 0.3 1 0.3 11/15/83Completion " 10/83 0.3 1 0.3 07/20/84

Total 8.9 11.9

STAFF INPUT(Staff Weeks)

FY 73 74 75 76 77 78 79 80 81 82 83 84 85

Preparation 0.6 5.1 62.1 1.4Appraisal 11.8 40.3Negotiations 11.5Supervision 3.6 23.1 17.1 6.9 8.9 0.6 2.4 1.2 14.1 0.4

Total 0.6 5.1 73.9 56.8 23.1 7.1 6..9 0.6 2.4 T2 1471 0.4

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COUNTRY EXCHANGE RATES

Name of Currency (Abbreviation) - Peso (P)

Exchange Rates: /aUS$-P P=US$

Appraisal Year: 1975 - 7.40 0.135Intervening Years: 1976-1982 - 7.80 0.129Completion Year 1983 - 14.00 0.071

ALLOCATION OF CREDIT PROCEEDS(US$ million)

Original Revised Actual bCategory Allocation Allocation Disbursements

(07/0279TTT 708/82)

1. Equipment, Furniture 9.750 19.109 19.109 18.611and Paper

2. Technical Assistance 0.750 1.191 1.191 1.152

3. Printing and Distri-bution of Textbooks 4.250 2.566 2.296/c 2.893

4. Civil Works, includingrelated professionalfees 1.000 2.000 2.000 1,724

5. Textbook developmentand teacher training 1.600 0.134 0.134 0.350

4. Unallocated 7.650 -

5. Cancelled 0.270 0.270

TOTAL 25.000 25.000 25.000 25.000

/a Source: International Financial Statistics, Vol. XXXVII,No. 12, Dec. 1985

/b As of January 10, 19847e US$270,000 was cancelled on March 8, 1982

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PHILIPPINES


EVALUATION SUMMARY

Introduction

This project was identified and prepared in 1974 and appraised in1975. Total project cost, including contingencies, was estimated at US$51.6million equivalent, and the foreign exchange was estimated at US$25 million,about 49% of the total cost. A Bank Third Window loan of US$25 millionequivalent to meet the foreign exchange cost of the project was approved inMarch 1976. The Loan Agreement was signed in April 1976, and the loan wasdeclared effective on July 29, 1976, after one postponement. The totalactual project cost is estimated at US$45.96 million equivalent, 11% belowthe appraisal estimate. Of the loan amount, US$24.73 million equivalent wasdisbursed and US$270,000 was cancelled in March 1982. The loan account wasclosed on January 10, 1984 when the last disbursement was made.

Objectives

The main project objective was to develop the Government'sinstitutional capability to produce and distribute instructional materialsfor the use of public elementary ".d secondary schools. A subsidiaryobjective was to establish a management information system and carry out apreinvestment study on the use of educational mass media. To achieve theseobjectives, the project provided the necessary buildings, furniture,equipment and technical assistance to establish or extend five curriculumdevelopment centers, a textbook distribution system consisting of one centraland 107 provincial/subprovincial warehouses for storing and transportingbooks from the printers to the schools. The project was to produce anddistribute 27 million textbooks (comprising 75 titles) as the first phase ofan eight-year program to produce 98 million textbooks by 1984.

Implementation Experience

The project has been an outstanding success, which may beattributed to the strength and dedication of the two main, complementaryimplemtntation agencies, the Education Development Projects ImplementationTask Force (EDPITAF, responsible for overall implementation) and the TextbookBoard Secretariat (TBS, responsible for textbook development, printing and

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distribution). Implementation was expected to be completed in four years;actual implementation, however, took over 7-1/2 years. The delay was causedmainly by the construction of the central TBS warehouse-office complex.Physical consty,ction had about 220% time overrun; textbook development,including staff training, had a 53% time overrun.

Results

The preject achieved its main objective when the temporary TBS wasconverted to the Instructional Materials Corporation (IMC), with a permanentstatus as a public corporation. The project produced and distributed 32million textbooks and teachers' guides, compared with the appraisal objectiveof 27 million books. It reduced the textbook-student ratio from 1:10 to1:2 in about 85% of the subjects. The distribution of 32 million books tosubjects 40,000 schools was made possible by the establishment of a distribu-tion network based on a central warehouse in Manila and 152 provincial andsubprovincial warehouses. About 368,000 teachers, supervisors, principalsand other administrators were trained to use the new instructional materials,compared with the appraisal target of 250,000 teachers. The ManagementInformation System (MIS) was established, as planned, and is now responsiblefor collecting, processing, generating and distributing educational data toall government agencies. It provides an essential support service to the IMCfor textbook production and distribution. Technical assistance was effec-tively used to develop the TBS, its related agencies like the CurriculumDevelopment Centers (CDCs), and the MIS. The Bank has continued its supportfor the development of the Government's institutional capability in textbookproduction through the follow-up project financed under Loan 2030-PH. Thisproject (Loan 1224T) has helped to produce information through evaluationstudies showing that the availability of reading materials is one of the mostconsistent determinants of better learning and that investments in textbooksare one of the most effective means of improving student achievement.

Sustainability

The establishment of the IMC as a permanent institution responsiblefor instructional material production and distribution leaves no doubt aboutthe project's sustainability, particularly when the Government is directlyresponsible for its operating cost as well as the cost of producing and dis-tributing books for schools. The issue, however, is whether the IMC's ownsustainability is best nurtured by buegetary dependency on the Government orfinanci-.1 autonomy through income-generating activities. Part of this issuerelates to the staff compensation and benefit plan for IMC which must be ableto comete with the private sector to attract and retain competent profes-sional and support personnel because staff stability is essential to the con-tinuous development, production and distribution of quality books to schools.

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Main Findings and Lessons

This project has yielded a rich lode of information on how todesign and implement a textbook development project. When the follow-upproject (Loan 2030-PR) is completed (expected to be in December 1986), theBank, perhaps through OPS/EDT, should assess the textbook developmentexperience of both projects and, if relevant, that of the first and thesecond Indonesia textbook projects, with a view to producing guidelines forsimilar future projects. After an appropriate interval, OED should carry outan impact evaluation of the textbook projects in the Philippines andIndonesia. For the present purpose, however, the audit presents thefollowing main findings and lessons to summarize or supplement thosepresented in the PCR (paras. 6.01-7.10).

(a) To sustain the Borrower's textbook development capability, theproject should focus on institution building, a gradual processrequiring continuous support from the Borrower and the Bank (PPAM,paras. 11, 21-22; PCR, paras. 5.02-5.04, 7.08).

(b) In a free enterprise system where a viable private publishingindustry exists, the long-term development of a strong bookindustry depends on cooperation between the Government and theprivate sector. In this case there is a need to clarify the roleof private publishers in relation to IMC in manuscript preparationand textbook production (PPAM, para. 23; PCR, paras. 5.05, 7.16,7.10).

(c) To avoid construction delays which hold up implementation, projectsites should be finalized before loan effectiveness (PPAM, para.17; PCR, para. 3.62).

(d) The project experience has shown that, among other things, theminimum time needed to develop a textbook (curriculum andmanuscript preparation, field testing, manuscript revision, bookprinting and distribution) is three years, a crucial factor indetermining the time required for overall project implementation(PPAM, para. 13; PCR, para. 3.18).

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PROJECT PERFORMANCE AUDIT MEMORANDUM

PHILIPPINES


I. PROJECT BACKGROUND

1. The Third Education Project, 1 / first mooted in early 1973, typi-cally started out in search of a theme. A UNESCO reconnaissance mission inApril 1974 identified no less than ten project items, from arts and craftsfor industrial schools to veterinary medicine for agricultural colleges. Afollow-up Bank mission in December 1974 narrowed down the project to textbookdevelopment and agricultural and rural development. When the project wasappraised in mid-1975, textbook development became the focus (the agricul-tural development component subsequentlv formed the nucleus of the FourthEducation Project, Loan 1374-PH). Board approval for the project was securedin March 1976; the Loan Agreement was signed in April 1976; and the loanbecame effective in July 1976.

2. The main purpose of the project was to develop the Borrower'sinstitutional capability to ensure the continuous development and supply ofrelevant textbooks and the accompanying teachers' guides. This required theestablishment or strengthening of local institutions to develop textbooks anda system to distribute them nationwide. The project was a follow-up to theSecond Education Project, Credit 349-PH, signed in January 1973, whichassisted the University of the Philippines Science Education Center (UPSEC)and the Ministry of Education, Culture and Sports (MECS) Social StudiesCenter in curriculum and textbook development in mathematics, science andsocial studies. Under Credit 349 selected textbooks were being tested andwere scheduled for printing in 1976. The Third Education Project wouldtherefore help the Government to expand the textbooks covered by the programunder Credit 349 and to begin a larger-scale production and distribution oftextbooks developed and tested under the Second Education Project. Thetiming of the Third Window loan made it possible to continue the Bank's asso-ciation with the Government's textbook development program.

3. Subsidiary objectives were to: (a) establish an educational man-agement information system which would provide educational managers with

1/ The original impetus to this project may be attributed to the 1969Presidential Commission to Survey Philippine Education, whose report in1970 recommended, among other things, the upgrading of basic education.Basic education was believed to be of poor quality because most schoolslacked appropriate textbooks and other teaching/learning materials. Theprovision of textbooks was therefore one of the most logical actions toaddress the issue of poor quality in education.

updated information on the school system, and (b) carry out a preinvestmentstudy on the use of educational mass media.

4. To meet the above objectives the project would expand and strength-en the management of textbook development by staff training and by providinga building for a workshop and central warehouse for the TBS. In support ofthe above textbook development management, the project would also establishor extend (a) five curriculum development centers to develop curricula,write, test and revise textbooks in five primary and five secondary schoolsubjects; (b) fourteen staff development centers and 34 development highschools as a network for testing textbooks and training about 250,000teachers in the use of the new textbooks; and (c) a distribution system con-sisting of one national (central) and 107 provincial and subprovincial ware-houses (of which 43 would be new ones built under this project) for storingand transporting books from the printers to the schools. The objective wasthe development of 75 new titles (39 textbooks, 36 teachers' guides) and themanufacture and distribution of 27 million textbooks. This would be thefirst phase of an eight-year program to introduce, by 1984, about 98 millionnew textbooks into public primary and secondary schools. Further details ofthe project content are summarized in the PCR, Table 2.01.

5. The total project cost, including contingencies, was estimated atP387.0 million or US$51.6 million equivalent. The foreign exchange was esti-mated at about P189 million or US$25 million equivalent, representing about49% of the total cost. The Bank would provide a Third Window loan of US$25.0million to meet 100% of the foreign exchange cost with a term of 25 years,including a seven year grace period, and interest at 4-1/2% per annum. TheGovernment would finance the balance of US$26.6 million equivalent.

6. Loan effectiveness was declared on July 29, 1976, after the Govern-ment fulfilled the requirements under Section 6.01 of the Loan Agreementwhereby the main management staff, including a director, were appointed tothe TBS which would be responsible for implementing textbook development,production and distribution. Intensive preparatory work by EDPITAF and Bankstaff enabled the project to get off to a running start, as evidenced by thefirst year's disbursements which were at 300% of the appraisal estimate, butunexpected problems eventually slowed down disbursements. Overall implemen-tation was expected to take about four years, with physical facilitiesexpected to be completed within two years of loan effectiveness. Actualimplementation, however, took over 7-1/2 years. The delay was caused mainlyby difficulties in determining the site for the construction of the centralTBS warehouse which had also been expanded to include an office complex. Inphysical construction, the project had a time overrun of about 220%. Soft-ware development, including staff training, had a 53% time overrun.

7. This project has been an outstanding success. Its main objectiveof institutional development was achieved when the Textbook Board became theregulatory Instructional Materials Council and the TES became the executive

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Instructional Materials Corporation (IMC). 2 / The project produced and dis-tributed 32 million textbooks and teachersT-guides, comprising 92 elementaryand high school titles, compared with the appraisal objective of 75 titlesand 27 million textbooks. It achieved an average textbook-student ratio of1:2 in about 85% of the subjects, compared with the ratio of 1:10 before theproject. All this was made possible by the establishment and further devel-opment of five CDCs (to develop curricula and prepare manuscripts fortextbooks), 15 Regional Staff Development Centers and 34 Development HighSchools (to test new textbooks and train teachers), and a central textbookwarehouse in Manila and 152 warehouses (at the regional, subregional, divi-sional and district levels of the MECS administrative system) which formed anetwork for the distribution of books to about 40,000 public elementary andhigh schools throughout the country. The central warehouse an( 54 newprovincial warehouses (11 more than the appraisal estimate) were built withproject funds. The TBS office complex was built with mainly Governmentfunds. The project also successfully established a Management InformationSystem (MIS) in the MECS Office of Planning Services.

8. Technical assistance was effectively used to support project objec-tives. Seven foreign consultants were used to advise on textbook developmentand publishing; one consultant helped to develop the MIS; and 34 short-termconsultants assisted in the preinvestment study of communication technologyin education. In addition, about 140 man-months were used to train TBS andCDC staff.

9. The total actual project cost, according to the PCR, was estimatedat about US$45.1 million, about 13% lower than the appraisal estimate ofUS$51.6 million (for further discussion of project cost, see para. 24). Fromthe loan of US$25.0 million, US$24.73 million was disbursed and the loanaccount was closed on January 10, 1984. The balance of US$270,000 had beencancelled in March 1982.

II. PROJECT IMPLEMENTATION AND OUTCOME

Overview

10. The project's success was due largely to the strength of the twocomplementary implementing agencies, EDPITAF and TBS. EDPITAF was respons-ible for physical facilities, technical assistance, finance and accounting,evaluation and liaison with the Bank, and the TBS was responsible for allactivities in the development, production, distribution and evaluation oftextbooks and the inservice training of teachers in the use of the new text-books. However, during the first three years following the establishment of

2/ This was the result of Presidential Executive Order No. 806 of May 27,1982, and Presidential Letter of Instruction No. 1463 of May 31, 1985,which formally established the IMDC.

the TBS in July 1976 (para. 6), EDPITAF supervised the operation of the TBS.In July 1979, in accordance with plans agreed upon between the Bank and theGovernment, the TBS was formally transferred to the Textbook Board whichtherefore assumed the administrative and financial responsibility for Ulltextbook-related activities (PCR, Anne:: 2). By December 1981, the TBS had130 staff, including 67 professionals (PCR, paras. 3.01, 3.02 and 3.07).

Institutional Development

11. The project's main objective of institutionalizing textbook deve-lopment was achieved in stages; each stage was carefully prepared and nurtur-ed by the Bank and the Government. The evolution of the TBS from EDPITAFtutelage to an autonomous secretariat under the Textbook Board, and finallyto the new IMC in 1985 mirrors the growth from an apparently temporaryorganization into a permanent institution. This was done with the constanturging of the Bank through supervision missions and communication with seniorgovernment officials. Despite the INC's permanent status, however, its staffconditions of service and budgetary dependency on MECS raise questions abouitthe long-term sustainability of textbook development, an issue discussed inthe next chapter.

Textbook Production and Distribution

12. As part of the aim of strengthening the institutional framework fortextbook production, the project financed the development of five CDCs3/which were responsible for writing manuscripts for textbooks in science,mathematics, Pilipino, English, social studies and other subjects. Up toDecember 1981 only three of the CDCs produced manuscripts for textbooks andteacher guides which were printed and distributed (PCR, paras. 3.03-3.06).Through these CDCs, the 15 Regional Staff Development Centers (RSDCs) and 34Development High Schools (DHSs), the TBS developed a system for manuscriptpreparation, testing in schools, revision before final printing and distribu-tion--a cycle requiring a minimum of three years--and training teachers howto use the new textbooks. To be sure, the project initially faced difficul-ties arising from coordinating the work of the various CDC writing groups toensure a proper scope-and-sequence content in textbooks for different schoolgrades, synchronizing manuscript preparation with the CDCs' internal approvalsystem, and supervising inexperienced editorial staff (PCR, paras. 3.10-3.11). The Basic Education Textbook Development Coordinating Council(BETDECCO), set up to advise on priorities for textbook development, did notfunction as planned. Weak collaboration between the CDCs and the curriculumunit of the Bureau of Elementary Education (BEE) led to some confusion amongteachers when the BEE issued the new Elementary Learning Continuum with which

3/ One of these centers responsible for developing the curriculum andmaterials for agro-fisheries was taken out of the project in 1979 andits work was transferred to the Technological University of thePhilippines.

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the new TBS textbooks were not in harmony. A 1980 review of textbooks firstissued in 1.977 enabled the TBS to correct book content inconsistencies intime for the revised editions of the same books. By then, the follow-up Loan2030 with a large textbook component provided a much-needed stimulus tocloser coordination among the CDCs, BEE and TBS (PCR, paras. 3.13-3.14).

13. Despite the above difficulties, the project succeeded in producing92 book titles, 17 more than the original objective of 75, and distributedabout 32 million textbooks compared with the appraisal estimate of 27million. 4 / While this was impressive, the more significant achievement wasthe institution building in textbook development, symbolized by the estab-lishment of the IMC (PPAM, para. 11). By 1981 the TBS had learned that thetextbook development cycle required a minimum of three years. It had evolvedsome basic criteria for textbook content, readability, book length, legibi-lity and illustrations. Work responsibilities were carefully delineated forspecialists such as writers, editors, graphic artists, production experts,and so on. The quality of textbooks progressively improved from the produc-tion of a single-color elementary science book with simple line drawings tothe production of a complex high school teacher's guide featuring two-colorcover and text, reproduced in facsimile and integrated with instructionalmaterial and photographs (PCR, para. 3.18).

14. The distribution network was the final link in the institutionbuilding process. The Philippine archipelago of several tlousand islandsstretching from north to south over 1,500 kilometers in the :outh China Seapresented a great challenge to the TBS to develop a distribution system thatwould deliver textbooks from the central warehouse in Manila to a remoteelementary school on an island a thousand kilometers away. That the TBSsucceeded, by December 1981, in moving 32 million books over land and waterwas a great achievement, but the system was far from perfect. Inaccurateschool enrollment figures or the early release of stocks led to over-supplyof books to some schools and insufficient supply to others. The earliestbooks issued in 1977 lasted only two years instead of the intended threeyears because they were printed on newsprint. Delays in printing often pre-vented books from reaching schools on time (PCR, paras. 3.38-3.39). Aserious hindrance to efficient book distribution was the failure to transmitmoney on time to the 13 regional and 127 division education offices tofinance local textbook deliveries. The TBS found it difficult to maintain anadequate supply of books at the local level even with stocks in the localwarehouses. The implementation of the new Elementary Learning Continuum(para. 12) meant that the original schedule for reprinting current textbookshad to be postponed, thus reducing book supply. By 1981 it became increas-ingly difficult to maintain the 2:1 student-book ratio achieved earlier.Nevertheless, the foundation had been laid for a distribution system which isbeing improved under Loan 2030.

4/ Between 1982 and 1984, with funding under Loan 2030-PH, TBS producedabout 29.3 million textbooks and distributed 28 million. Thus, byDecember 1984, TBS produced a total of 62.4 million and distributedabout 60 million textbooks, or about 61% of the original objective ofdistributing 98 million books to schools by 1984.

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Teacher Training

15. To promote the effective use of the new textbooks, inservice train-ing of five to ten days was carried out for elementary and high schoolteachers to prepare them to use the new textbooks and other teaching materi-als and to familiarize them with the appropriate teaching methods related tothe curriculum. They were also shown how to evaluate student achievement(PCR, para. 3.43). The inservice training, carried out during the schoolvacation, first trained in Manila about 60 trainers, who then trained, at the1 iegional offices, about 1,200 trainers who in turn trained about 100,000teachers. Between 1977 and 1981 nine training programs were conducted. Atotal of about 318,000 elementary and secondary high school teachers and50,000 supervisors, principals and other administrators took part in thetraining. Thus about 368,000 participants, 47% more than the appraisal planof 250,000 teachers, received training in the use of the new textbooks.

Physical Facilities

16. The project provided buildings, furniture and equipment for the TBScentral warehouse-office complex, the Philippines Normal College LanguageStudy Center (PNC-LSC), the Philippine Practical Arts Center (PPAC) of thePhilippine Technological University, an RSDC in Palawan and 54 warehouses inthe 12 regions. For textbook testing and teacher training, 15 RSDCs (includ-ing the new one in Palawan) were given selected equipment and trainingmaterials. Tools for practical arts were given to an additional 21 RSDCswhich subsequently were not used for book testing or teacher training becausethere was no policy guideline on the teaching of practical arts such as agri-culture, fisheries, industry, business, and home economics (PCR, paras. 3.05and 3.60). When the warehouses were completed with furniture and equipment,they were handed over to the regional education offices for administrationand maintenance. Similar?y, when the office buildings for the PNC-LSC, PPACand the Palawan RSDC were completed, furnished and equipped, they were handedover to the beneficiary institutions. Also for textbook testing, 34 DRSswere given equipment and instructional materials.

17. All the above facilities were completed on time except the con-struction of the TBS warehouse-office complex at the Diliman campus, Univer-sity of the Philippines. Construction was delayed by c*anges in site loca-tion and the consequent need to redesign the complex. The delay caused theGovernment budget allocation for this construction to lapse, requiring areapplication for budget funds. By late 1980 only 40% of the work wascompleted because the scope of work had been enlarged, but 80% of the fundshad been used up. To save the complqx, EDPITAF in 1981 turned over allconstruction supervision responsibilities to the TBS. To ease the Govern-ment's cash burden, the Bank agreed in July 1982 to allow disbursement forcivil works to increase from 30% to 85%. This helped to cover the cost ofthe central warehouse and Government funds were used to cr.mplete the TBSoffice buildings in mid-1983 (PCR, para. 3.62). Compared with the appraisal

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plan to provide about 21,900 square meters, the project constructed about29,300 square meters, a 34% increase due to the addition of the TBS officecomplex to the central warehouse, whose enlarged construction from about4,600 square maters to about 18,000 square meters was partly offset by reduc-ing the number of provincial warehouses constructed from the planned 107(13,700 square meters) to the actual 54 (5,800 square meters). The totalactual cost of construction, including professional fees, was US$3.92 mil-lion, 16% over the appraisal estimate. Furniture and equipment cost US$4.24,2% higher than the appraisal estimate (PCR, paras. 4.09-4.10).

Management Information System and Preinvestment Study

18. An important part of the Government's institution building was theestablishment of the Management Information System (MIS) in the Office ofPlanning Services (OPS). Reliable data on students and teachers in eachschool are essential to educational planning, including the production anddistribution of instructional materials. The project's modest investment ofabout US$200,000 had a far greater pay off than was probably expected atappraisal. EDPITAF made effective use of one consultant who worked for twoyears (1977-78) to train over 850 MECS central and regional staff in theoperation of the MIS (PCR, para. 3.66). Where previously various agencieswere duplicating efforts in producing educational statistics, the OPS has nowassumed responsibility for data on elementary and secondary schools. Apreinvestment study was carried out, as planned, to assess the use of com-munication technology to improve the quality of basic education and to pro-vide educational support for rural development. The study's conclusions ledeventually to a mass media pilot project for which the Bank provided a tech-nical assistance loan of US$2.0 million (PCR, para. 3.65).

The Bank's Role

19. The Bank's most important contribution was in project design. Thefocus on institution building and the Bank's repeated emphasis during imple-mentation on making the TBS a permanent institution were fully justified. Inappraising the project the Bank had the benefit of the experience of anon-going textbook project in Indonesia (Credit 387-IND). Even though whenthe Philippines project was appraised the Indonesia project was only twoyears into implementation, the main lessons about institution building wasalready emerging. Ste ted in 1973 the Indonesia project produced 280 milliontextbooks (compared with the appraisal objective of 138 million) but left noviable institutional capability for continuing the production and distribu-tion of textbooks when the project was completed in 1982 (OED Report No.4562, June 17, 1983). In the Philippines, the Bank was determined from theoutset to ensure that the project design would be based on the objective ofdeveloping the Government's institutional capability in producing, distribut-ing and evaluating instructional materials for its school system. Thus, theBank's condition for loan effectiveness (para. 6) facilitated project imple-mentation which was ably carried out by EDPITAF and TBS. In retrospect, thefour-year implementation period was too ambitious in view of the need for aminimum of three years to go through the cycle of producing a textbook.

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Supervision missions were adequate and constructive, especially when theyincluded a textbook development specialist who was able to provide on-the-spot technical assistance in resolving technical problems. Continuity inBank support was assured through Loan 2030-PH, a sector loan of US$100 mil-lion to improve equity and quality in elementary education, including theprovision of textbooks as the second phase of the Government's textbook deve-lopment program (PPAM, para. 4; PCR, para. 3.67).

Textbooks and Student Achievement

20. The TBS Evaluation Section took the unique opportunity provided bythe project to evaluate the effect of the availability of textbooks onstudents' learning achievement. The evaluation findings, based on testscores of project textbook users and non-project textbook users at differentgrades and in different subject areas, showed that positive learning gainsfrom the use of project textbooks tended to recur in the separate studiesconducted from 1976 to 1981.5/ As the PCR provides an excellent summary ofthe evaluation of the textbook use (PCR, paras. 3.49-3.57), the audit wouldmerely like to highlight the following main findings: (a) the availabilityof learning materials such as textbooks tends to equalize the learningachievement of rich and poor children (PCR, para. 3.54); (b) there was noclear evidence that a 1:1 student-book ratio had better learning outcomesthan 2:1 ratio (PCR, para. 3.55); (c) the degree of learning achievement wasdifficult to determine in a multilingual (Pilipino and English) situationwhen a comparison is made of grade one student scores on science tests (PCR,para. 3.56); and (d) a special 1979 UNESCO study reported that the projectcost less than 1% of the total annual per student cost with a 14% improvementin learning achievement (PCR, para. 3.57). Data generated under this projectalso assisted Bank-funded research to examine the influence of textbooks oneducational quality. One finding of overriding significance from thisresearch was that the availability of reading materials was one of the mostconsistent determinants of better learning. Thus the finding supported thethesis that investments in textbooks were one of the most effective means ofimproving student achievement.6/

5/ Textbook Board Secretariat, "The Effects of the National TextbookProject on Pupil Achievement in Communication Arts, Science andMathematics, and Social Studies - Summary," April 14, 1982.

6/ Operations Evaluation Department, "Evaluation of a Completed ResearchProject: 'Textbook Availability and Educational Quality' RPO 671-60,"March 19, 1985. For a more detailed discussion of the Bank-financedresearch project, see Stephen P. Heyneman, Dean T. Jamison, and XeniaMontenegro, Textbooks in the Philippines: Evaluation of thePedagogical Impact of a Nationwide Investment, World Bank Report SeriesNo. 335.

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III. MAIN ISSUES

Institutional Development

21. A major issue, at project completion, was the presidential dis-approval of the recommendation, based on two studies in 1978 and 1981, totransform the TBS into a government corporation (PCR, paras. 5.01-5.02).Since then presidential approval was secured and the IMC has been establishedas a public corporation (para. 7); the remaining problems concern thefinancial autonomy and staff conditions of service. The IMC's operationalexpenses depend entirely on the budget provided by the Government. Decision-making on procurement of equipment, paper and printing services valued atP2.0 million or more required presidential approval. The time-consuming,multi-tiered approval process often caused delays.7 / The question iswhether financial autonomy is essential to the continued institutional deve-lopment of the IMC, and if so what steps should be taken to nurture it. Onesuggestion is that the IMC should become an income-generating corporationfrom which the Government would buy books on contract. This, however, wouldraise other issues such as pricing textbooks to give the IMC a profit marginsufficient for its maintenance and development, the level of textbook subsidyfor public schools compared with prices charged to private schools, and themarket share of private publishers (PCR, para. 5.05).

22. An integral part of institution building is the development of pro-fessional expertise among staff with clear prospects for career growth andtenure. The delay in the late 1970s in establishing the TBS as a permanentinstitution had led to the loss of some important professional staff anddelayed implementation of its staff training (fellowship) program. Highstaff turnover, reflecting low staff morale, would seriously affect theefficiency of the IMC, which must offer a compensation and benefit plancomparable to what the private sector gives to attract and keep competentstaff (PCR, para. 5.03).

The Private Sector

23. The project had spin-off activities which benefited the privatesector. It stimulated industries related to graphic arts production; type-setting, ink and paper manufacturing; printing presses; transport and commer-cial forwarders, and so on. Despite these benefits, the question was askedwhether the Government should have the major share of the textbook market.To be sure, private publishers were licensed to print and sell commercial

7/ In one case the Government, after months of indecision, overturned acontract award made by TBS to a foreign firm for printing services. TheGovernment's decision not to proceed with the contract award made by theTBS for the lowest evaluated bidder was declared a misprocurement by theBank which consequently cancelled US$270,000 of the loan, the foreignexchange cost of the aborted contract.

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editions of project textbooks. Some privately developed textbooks were evenincluded in the project, but the private book publishers were apparentlyconvinced that their livelihood was threatened as long as the Government wasin the textbook publishing business (PCR, para. 5.05). In this connection,some basic questions which might be asked include the following: Shouldprinting be contracted to the private sector? What is the role of ICB inproviding printing services? Should the private sector compete withalternative textbook series? Is there a case for a cost-recovery policy and,if so, what should it be? These and other questions point to the need forclarifying the private sector share in the textbook industry. On the otherhand, under the Government's new curriculum policy the practice of solicitingtextbook manuscripts from the private sector as a way of giving it a moreactive role raises the question of the future of the CDCs whose developmentthe project helped to finance. The CDCs, despite their designation, wereinvolved in textbook manuscript preparation rather than curriculumdevelopment as such. After 1981, however, the CDCs were used infrequently.Having developed a team of textbook writers, researchers and otherspecialists, the CDCs should be assigned more responsibility, perhaps incooperation with the private sector, in producing a constant supply oftextbook manuscripts, either new or revised, to maintain the flow of instruc-tional materials to the schools (PCR, paras. 5.04 and 6.02).

Costs

24. The total actual project cost, according to the PCR, was US$45.09million, about 13% less than the appraisal estimate of US$51.6 million, butthe equivalent in pesos is not stated. Annex 8 attempts to summarize esti-mated and actual project cost by year and type of expenditure, but there aregaps in the data presented. For example, furniture and equipment, technicalassistance, and paper brokerage and handling have no cost figures in pesos,whereas all the other types of expenditure have both US dollar and pesocosts. Table 4.01 of the PCR, however, states that the total actual localcost was US$20.36 million equivalent, but as the PCR does not explain whatmethod was used to arrive at this figure, it is impossible to compare theappraisal estimated total project cost of P 386.98 million with the actualcost in pesos. As the purpose of Annex 8 is to present a chronologicalsequence of project costs, the average annual currency exchange rate used toconvert one currency into another should have been stated. To compute totalactual cost in local currency or US dollars equivalent, the Bank's preferredmethod is to apply the exchange rate prevailing in each year against expendi-tures in that year (OMS 3.58, Annex July 1978, para. 19).

25. The audit's concern is twofold: it seeks to know first, whetherthe actual costs, in local currency and US dollars equivalent, are accurate;and second, whether and to -hat extent the actual costs were affected by cur-rency exchange rates and price inflation. This basic information on actualcosts is the reference point for an overall evaluation of the adequacy of theBank's financial support and the sufficiency of the Government's financialprovision for the project. Such evaluation would include, among otherthings, reasons for cost underruns and overruns. For example, additionalanalysis of the costs associated with textbook development, production and

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distribution would help in future projects. Specifically, it would be usefulto know why the cost of manuscript writing, field testing, manuscript revi-sion, and preparation for printing was 69% less than estimated; why the dis-tribution of 32 million instead 27 million textbooks cost 137% more thanexpected; and why paper cost 150% more than estimated (PCR, paras. 4.03-4.06). Information of this nature is an important building block in theinstitutional devElopment of the Government's capability in textbook develop-ment.

26. The project disbursement profile shows that US$19.9 million orabout 80% of the loan had been disbursed between FY76 and FY81, during whichthe currency exchange rate remained the same as that at appraisal, that isP7.5 to one US dollar. Between FY82 and FY84, however, when the balance ofUS$4.8 million of the loan was disbursed, the exchange rate dropped fromP8.2 to P14.0. Against this background of fluctuating exchange rates, theproject's success in achieving an overall cost underrun merits more detailedinformation on costs in local currency than has been provided by the PCR. Atany rate, on the basis of data given by the PCR, the total actua projectcost, after adjusting an apparent error it adding the total cost of textbooktesting and feedback (PCR, Annex 8), appears to be US$45.96 million ratherthan US$45.1 million. The cost underrun should therefore be 11% rather than13% (PPAM, para. 9; PCR, para. viii). While these corrections are reflectedin the Basic Data Sheet, they should not be taken as final. The total actualproject cost in local currency and US dollars equivalent should be verifiedby the Government.

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PHILIPPINES

THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PH)


July 200 1984

Projects DepartmentEast Asia and Pacific Regional Office

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PHILIPPINES

THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T -PH)


Highlights

i. The US$25.0 million World Bank loan financed a project designed toimprove and expand the supply and development of textbooks in the Philippines.

ii. The objective of the project was to develop the institutionalcapacity for the continuous development and supply of relevant textbookmaterial in the Philippines. This required the establishment or strengtheningof local institutions to develop and distribute textbooks* and the productionand distribution of about 27 million textbooks as the first phase of an eight-year program to introduce about 98 million new textbooks into public primaryand secondary schools by 1984.

I 'ii. The project provided technical assistance, equipment and facilitiesto:

(a) expand the functions of the Textbook Board for management oftextbook development at all stages;

(b) establish or extend five curriculum development centers to developcurricula, write, test and revise textbooks in five primary and fivesec4ndary school subjects;

(c) establish 14 staff development centers and 34 development highschools as a network for testing books and training teachers in theuse of the new textbooks; and

(d) establish a distribution system consisting of national, provincialand sub-provincial warehouses for transporting books from printersto schools.

iv. In additiong the project financed: (a) the establishment of an edu-cational managpment information system to provide educational managers with aregular flow of up-to-date information; and (b) a pre-investment study of useof educational mass media.

Vo The project succeeded in meeting the twofold objective of textbookproduction and institutionalization. The institutional network for all text-book-related tasks was built and a central agency was organized to manage thenationwide operation. 92 elementary and high school titles were developed ana32 million textbooks were distributed, exceeding the appraisal target of75 titles and 27 million textbooks. The textbook-student ratio came down to1:2 from 1:10 before the project. Impact studies showed that test score

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achievement of project pupils was higher than nonproject pupils for 14 out of16 titles evaluated.

vi. However, some of the risks identified at appraisal persisted.Delays in the delivery of textbooks to the schools were frequent for variousreasons - poor coordination between curriculum development and book produc-tion, complex disbursement and contract approval procedures and others. Thesystem lacked the ability to sustain an adequate book supply in the field, andbook gaps began to be felt again in 1981, as the ratio between books andschool children widened. Also, the status of the Textbook Board Secretariat(TBS) became uncertain upon completion of the project. The process oflegalizing the TBS into a permanent body is still ongoing and is beingaddressed in the Elementary Education Project (Loan 2030-PH).

Project Costs

vii. The project, originally scheduled for the period July 1976 toDecember 1980 was extended twice. The loan closing date was extended fromJune 30, 1981 to June 30, 1982, then to June 30, 1983. The reason was delaysin the construction of the TBS office-warehouse complex, which was beset withproblems. It was finally completed in mid-1983.

viii. Despite the extensions, the actual overall project cost wasabout 13% less than appraisal. By category of expenditure, however, theproject's cost performance varied sometimes widely from appraisal. Intextbook development, for example, despite the increase in the number of booktitles produced from appraisal target, the cost was 69% less than theappraisal estimate. Paper procurement had the biggest cost overrun of 150%over project appraisal.

Lessons Learned for Future Project Implementation

ix. The experience of this project proved useful to the design of asubsequent textbook component of the Elementary Education Project. The newproject took note of the following lessons and acted on them:

(a) For an institutional network to be effective in coordinating thevarious activities of curriculum and book development, productionand distribution, the institutions involved must be given the legaland financial support to carry out their functions. The ElementiryEducation Project supported the transformation of the TBS into agovernment corporation equipped with the appropriate legal andfinancial bases.

(b) Simplification of disbursement and procurement procedures would pre-vent delays. The Elementary Education Project revised the disburse-ment system by releasing directly to local authorities the budgetfor distribution expenses. A new paper procurement system thatwould prevent the depletion of paper stock and reduce red tape wouldbe introduced.

(c) Participation of nrivate publishers should be encouraged and theirrole clarified. The Elementary Education Project provided for therepresentation of private publishers in the Instructional MaterialsCouncil and the Ministry of Education was requested to complete theplans for purchasing instructional materials from privatepublishers.

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I. COMPLETION REPORT PREPARED BY THE GOVERNMENT

A. INTRODUCTION AND BACKGROUND 1/

The Setting

1.01 The Philippines is composed of the three island groups of Luzon,Visayas and Mindanao, together having a total land area of 297,200 sq. km.Population reached 42.1 mil on in 1975 and rose to 48.1 million in 1981 at anannual growth rate of 2.7%.- Administratively, the country is divided into13 regions.

1.02 The Philippine economy maintained an average annual growth of realGNP of 6.3 frm 1970 to 1980. Per capita GNP rose at an annual rate of 3.5%during the Same period. Unemployment was at levels of 4-5% between 1976 and1980 whie uaderemployment dropped from 25.5% to 16.1% of total employedbetween 1976 and 1978. Adjustments in minimum wages were made periodica y,with the maximum effective minimum wage set at P 31 daily in March 1981.-

1.03 There are eight dominant languages spoken by 85% of the popula-tion. One of these, Tagalog, serves as the core language for the legislatednational langutge, Pilipino. The Government maintains a bilingual policy ineducation, using Pilipino and English as the official media of instruction.

The Educational System

1.04 Under the current system, the ten years of basic education includesix years for elementary schooling and four years for secondary schooling.The country has a high adult literacy rate estimated at 90%. On the average,the government schools account fo.r 95% of elementary enrolment; 50% ofsecondary enrollment, and 15% of tertiary enrollment, although a gradualincrease in government share in secondary and tertiary enrollments was notedfrom the mid-70s to 1980.

1.05 The gross participation rate in formal education is high and stillincreasing. A comparison between 1974 and 1980 reveals the following: at

1/ The project closing date was originally scheduled for June 30, 1981. Itwas later extended twice first to June 30, 1982 and then to June 30,1983, because of delays in the construction of the TBS office buildingand warehouse. Except for civil works, the project as originallyconceived at appraisal was completed by June 30, 1981. This reportfocuses on activities that took place from July 1976 to June 1981.

2/ Census data reported in the NEDA 5-Year Plan for 1983-87.

3/ Sources: NEDA 5-Year Plan for 1983-87 and "Social Development in thePhilippines: 1970-80."

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elementary level, the school enrollment ratio rose from 103.9% to 110.7%; atseco4lary level, from 47.6% to 59.6%; and at tertiary level, from 48.6% to57%.-

Project Formulation

1.06 In 1969, a Presidential Commission to Survey Philippine Education(PCSPE) was organized to diagnose the problems of the educational system andto recommend policies, programs, and projects for reform. In 1970, the PCSPErecommended, among others, upgrading the quality of basic education in thecountry. The serious lack of textbooks and other teaching aids was seen asthe principal reason for poor quality education.

1.07 In 1971, a UNESCO mission visited the Philippines to identify educa-tion projects suitable for World Bank/IDA financing. The subsequent UNESCOreport formed the basis for the establishment of the Educational DevelomentProjects Implementing Task Force (EDPITAF) under the Minister of Education andCulture on September 29, 1972 by Presidential Decree No. 6.A.

1.08 The high proportion of school-going population underscored the needto improve the quality of instruction. School curricula were outdated andtextbook development was neglected. On the average, the :extbook-to-pupilratio was 1:10. With respect to learning achievement, the 1975 Survey ofOutcomes of Elementary Education (SOUTELE) revealed that there was no signifi-cant incremental learning between grade 5 and grade 6 pupils. This was attri-buted to the following: inadequacy of instruments to measure skills, presenceof a learning plateau at certain ages, curriculum redundancy, and failure ofthe system to achieve specific grade-level objectives. The survey furtherrevealed that learning achievement was lowest in the three Rs. The resultspointed to the need to upgrade the quality of learning in basic education.

1.09 With the creation of EDPITAF, a Third Education Project was con-ceived, to address directly the issue of educational quality. Consistinglargely of textbook production and distribution and the establishment of aunified management for educational publishing by the Government, the projectwould focus on the problems pertaining to the inadequacy of schoolini/inputs,particularly traditional and nontraditional instructional materials, The

4/ NEDA, "Social Development in the Philippines: 1979-80."

5/ Realizing the need for a more comprehensive approach in developing theelementary level, the Government in 1982 launched the Program for Decen-tralized Educational Development (PRODED). A phased development of thesecondary and tertiary levels is also being planned by the Government.

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project proposal was appraised in 1975.61 Negotiations were held in January1976. The project was effective July 29, 1976, and was expected to becompleted December 31, 1980. The closing date was set for June 30, 1981.

Project Objectives

1.10 The overall purpose of the project was to develop the institutionalcapacity for the continuous development and supply of relevant textbook mate-rial in the Philippines. This would involve: (a) the establishment andstrengthening of local institutions to develop and distribute textbooks; and(b) the production and distribution of 27 million textbooks as the first phaseof a Textbook Project to provide the public primary and secondary schools with98 million new textbooks by 1984.

1.11 In addition, the project was to provide for: (a) the establishmentof an educational management information system to provide educationalmanagers with a regular flow of up-to-date information; and (b) the financingof a preinvestment study on the use of educational mass media, particularlysatellite communication.

B. PROJECT DESIGN

2.01 The content of the Third Education Project is summarized inTable 2.01.

6/ A UNESCO mission visited the Philippines in December 1974 to identifycomponents of the Third Education Project. A number of areas forassistance were identified, including textbook production, agriculturaleducation and fishery training. Following discussions, the Bank decidedto narrow the project to three components: (a) quality improvement,including textbook development; (b) agricultural and rural development;and (c) experiments and studies. A UNESCO preparation mission visite-the Philippines in March 1975 and prepared the project on this basis.The appraisal mission of June 1975 further focussed the project on text-book development and production, as this was considered vital to improve-ment of quality and equality to inputs between rural and urban schools.The appraisal mission scaled down the Government's proposal for an eight-year project to produce 150 million textbooks to a more realistic numberof about 30 million textbooks over four years. It also concentrated onissues of institution building and staff training, and recommended theformation of a permanent, autonomous institution to carry out thedevelopment, production and distribution of textbooks on behalf of theGovernment.

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Table 2.01: TRIRD EDUCATION PROJECT CONTENT

Objectives Project inputs Expected outputs/outcomes

Textbook Preparation and Distribu-tion (proposed outlay3 US$35.3=4lion)

A. Establish and support 5 curri- 1. Construction of 2 buildingst 75 titles (39 textbooks, 36 acto&-culum development centers to Language Centers vocational panying tescher's guides) devel-develop curricula, write, test study Canter. od In elementary and high schooland revise textbooks. science, matho scial studies,

2. Provision of furniture and Filipino and English.equipment for S CurriculumDevelopment Centers.

3. Financing of contracts todevelop curricula and bookmanuscripts.

4. Provision of techsal. oasfb-tab ds.

B. Establish 14 isgional Staff 1 Financing of testing of proto- 250,000 teachers and administra-Development Centers, desigate type textbooks In 40 represen- tore trained on effective use of34 Development Hi~gh Schools as tative schools. t.books; system established andnetwork for testing books and reports completed on evaluation oftraining 250,000 teachers on 2. Financing teacher stipends at teacher training and Impact of newuse of books teacher training workshops books on learning achievement.

3. Provision of equipment for 14pSCo and 34 DSa.

C. Expand functions of Te-.tbook 1. *organization of the Textbook 27 st1llion textbooks printed underBoard for management of text- Board Secretariat wit quali- Textbook Board management.book development. fied staff.

2st Formation of BeTDECCO advisorycouncil.

3at Construction of building forTextbook Board.

4.* Provision of furniture andequipment.

5. Financing paper procurementand printing coats.

6. Provision of technical assis-taete.

D. Establish distribution system 1. Construction, furnishing, 27 million textbooks distributedof one national and 107 pro- equipping of national textbook nationally at 1 g2 bookdpupilvincial and .ubproviPcial warehouse and 107 provincial ratio.warehouses for transporting and eubprovincial warehouses.books from printers toschools. 2. Financing textbook distribu-

tion through provincial ware-houses to schools.

Educational maneen Informationsystem (proposed outlay: USt0.2million)

Introduce management information 1. Provision of furniture and Centralized computer processingsystem at ministry Office of Plan- equipment. established.ning Services to improve policymaking, administration and plan- 2. Provision of technical assio-ning. ta e in design of Information

system.

Mass Madia Preinvestment. Study(proposed outlay: US$0.4 million)

Select most effective strategy for Provision of technical assistance. fteinvestment report completed.Introducing educational technol-Ogy.

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Textbook Production and Distribution

2.02 Management of Textbook Development. The overall purpose of theproject was to develop the institutional capacity for the continuous develop-ment and supply of relevant textbooks for the Philippines' basic educationsystem. To accomplish this, the functions, staffing and facilities of theTextbook Board would be expanded and a Textbook Board Secretariat (TBS)created to enable the board to manage all textbook development activities,from initial planning to book manufacturing and distribution to schools. Thiswould be in addition to its regular function of approving manuscripts intendedfor production into textbooks for elementary and high schools. A BasicEducation Textbooks Development Coordinating Council (BETDECCO), includingeducators, national education officials, and a repreacatative of thepublishing industry in the private sector, would be formed as an advisory bodyto the Textbook Board.

2.03 The textbook development cycle would be three years: the first yearfor planning and writing, the second for testing and revision, and the thirdfor printing and distribution. The Textbook Board would contract five Curri-culum Development Centers (CDCs) for curriculum development, manuscriptwriting in their subject areas of specialization, field testing of prototypebooks in about 40 representative schools, text revision, and the training ofteachers in the use of the new books. A network of 14 Regional Staff Develop-ment Centers (RSDCs) and 34 Development High Schools (DHSs) would also belinked together and would be used by the project for manuscript testing andteacher training.

2.04 Management of Textbook Manufacturing and Distribution. The TextbookBoard would purchase watermarked paper in bulk, contract the printing andbinding of books, monitor the contracts, and manage all aspects of book dis-tribution from printers to schools. Printing would generally be done onroll-fed presses for large printing runs, and sheet-fed presses for smallprinting runs. During the first two years of the project textbooks would beprinted in one color and would have an expected life of three years. Bindingwould generally be done by saddle-wire stitching.

2.05 A national textbook distribution system would be established andwould consist of a central textbook warehouse in Manila and 107 provincial andsubprovincial warehouses. These warehouses would be used to distribute about18 million textbooks yearly. Printers would deliver books to the centralwarehouse, where they would be packaged by the school of destination tominimize later repackaging. Through transporters and forwarding agents theTextbook Board would transport books from the central warehouse by lond, sea,or air to provincial and subprovincial warehouses. Public school pripcipalswould be provided funds at local education offices for transporting Looks totheir schools, generally by public transport. Distribution would be equit-able, pro-rated on the basis of one book per subject for each two pupils atevery grade level in the public school.

2.06 Textbook Utilization and Evaluation. School principals would beresponsible for the care and storage of books at the school level. They wouldarrange through classroom teachers for the loan of textbooks to students free

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of charge. One student would receive a book on loan in a subject, anotherstudent a book in a different subject. During classroom hours the book wouldbe shared between two students, facilitated by the typical classroom furniturewhich seats more than one student per desk. After school hours the bookscould be exchanged among students as needed.

2.07 Evaluation of the textbook component would include data on thenumber of books printed and delivered to schools and an analysis of theresults of the program of testing prototypes. It would also include a programto measure the incremental change in learning achievement which results fromprovision of the textbooks. A program of testing student achievement would beinitiated in a sample of schools across the country. Evaluation of theteacher training component of the project would include data on the number ofworkshop participants and an analysis of the effectiveness of the training.

MECS Management Information System

2.08 To strengthen the planning and management at the education ministry,a management information system (MIS) would be introduced at the Office ofPlanning Services (OPS). The system would provide for centralized computerprocessing of statistics on pupils, teachers, educational finances, schoolfacilities, instructional equipment, and textbooks - data necessary to improvepolicy-making administration, and planning. Introduction of the system wouldrequire: (a) setting priorities regarding data needs; (b) designing andtesting forns and procedures for data collection and processing;(c) scheduling and phasing implementation; (d) computer programming; and(e) staff training.

Mass Media Preinvestment Study

2.09 To provide a sound basis for decision-making and to select the mosteffective strategy for introducing educational technology through the exten-sive use of satellite communication and other mass media for formal and non-formal education, a preinvestment study would be conducted jointly by nationaland international specialists led by a ministry interagency planningcommittee.

Technical Assistance

2.10 The Third Education Project included 24 staff-years of fellowshipsand 27 staff-years of local and foreign specialist services. Approximately56 educators and administrators would receive training overseas in curriculumwork, manuscript preparation, book production, etc. The major part of thistraining would be practical, on-the-job apprenticeship. Specialist serviceswould be provided in fields related to the project.

Project Cost

2.11 The total cost of the Third Education Project was estimated atP 387 million or US$51.6 million and would be financed as follows: (a) theproposed Bank loan US$25.0 million (48% of total project cost) to meet 100% ofthe foreign exchange cost; and (b) the government counterpart funds of

- 25 -

US$26.6 million (52% of total project cost). Each textbook produced under theproject would cost an average of US$0.79 including cost of development testingand distribution.

C. PROJECT IMPLEMENTATION

3.01 Overall responsibility for implementing the Third Education Projectwas exercised by EDPITAF, as provided for in Presidential Decree No. 6.A. Inaccordance with agreements reached during negotiations, the Philippine Govern-ment through EDPITAF strengthened the administrative capability of the educa-tion ministry's Textbook Board by providing it with a management structure forthe development and provision of textbooks. This was embodied in the educa-tion minister's issuance on February 12, 1976 of the appropriate rules andregulations to implement the Textbook Law Presidential Decree No. 687(Annex 1), the legal basis for the organization of the TBS.

3.02 The delineation of specific responsibilities for project implementa-tion as set forth in the appraisal report was followed. EDPITAF was responsi-ble for physical facilities, technical assistance, finance, and monitoring andreporting; it also carried out the implementation of the management informa-tion and-media preinvestment subprojects. TBS was responsible for the fullrange of textbook-related activities, from manuscript development to paperprocurement, printing and distribution, and teacher training and evaluation.

Institutional Network for Textbook Development

3.03 Curriculum Development Centers (CDCs). Part of the institutionaldevelopment necessary to ensure the continuous production and supply of rele-vant instructional materials was the designation of five existing agencies asCDCs. The CDCs were responsible for the planning, writing, testing, andrevision of textbooks in the five principal subject areas of science, mathe-matics, Pilipino, English, and social studies as well as in other subjectareas. These centers collaborated with the TBS in the development ofmaterials through the close interaction between CDC writers and TBS editors.

3.04 The CDCs were headed by a director and staffed with full-timewriters who were given honoraria from annual financial grants from TBS. Theinstitutions designated as CDCs were:

(a) University of the Philippines Science Education Center (UPSEC) forscience and math;

(b) Philippine Normal College Language Study Center (PNC-LSC) forFilipino and English communication arts;

(c) Social Studies Center of the education ministry for social studies;

(d) Technological University of the Philippines for work education andpractical arts; and

(e) Central Luzon State University for agro-fishery arts.

3.05 During the period July 1, 1976, to December 31, 1981, only UPSEC,

- 26 -

PNC-LSC, and the ministry's Social Studies Center produced manuscripts fortextbooks and teacher material which were printed and distributed. The Tech-nological University of the Philippines, provided with funds for thedevelopment of a secondary level curricululm for practical arts, producedvarious curriculum guides for teachers' use. However, with the absence ofpolicy direction in this subject area, the work of this CDC was severelyhampered. For example, it was not clear how the five streams of the subjectarea (agro-fisheries, industry, business and distributive arts, work educationand homemaking arts) would be taught to all schools; the issue of the effec-tive use of Pilipino for technical terms which had to be coined as none as yetexisted in that language was not sufficiently addressed; there was no time-table officially adopted for the production of new learning materials notfinanced by the Third Education Project. By 1981, the CDC had distributed tothe field pilot copies of five curriculum guides, 25 teachers guides, andabout 120 students modules on various practical arts topics. As no productionhad been planned for them under the Third Education Project, these materialswere subsequently submitted to the Bureau of Secondary Education for furtherrefinement, possibly under a secondary-level sector improvement programenvisioned for the latter 1980s.

3.06 The Central Luzon State University was to have collaborated with theTechnological University of the Philippines on curriculum and material devel-opment in practical arts, specifically on agro-fisheries. After initialdevelopment activities in 1977-78, this CDC was effectively abolished in 1979when EDPITAF was streamlining its operations and its work in progress wastransferred to the Technological University of the Philippines.

3.07 Textbook Board Secretariat (TBS). This management unit for alltextbook-related activities of the project started operation on July 1, 1976with the appointment of a director and key staff. During the initial organi-zational years (1976-78), TBS was under the direct administrative supervisionof EDPITAF. On July 13, 1979, and in accordance with plans agreed upon withthe Eank, Presidential Letters of Instruction No. 873 transferred TBS to theTextbook Board providing the latter with administrative and fitancialauthority and capability to manage all textbook-related operations. ByDecember 1981, TBS had a staff of 130 of which 67 were professionals ineditorial, production, manufacturing, distribution, training and evaluation,administration, and comptroller divisions. The organization chart of TBS isshown in Figure 3.01.

3.08 Other Institutions. At the regional Level, 14 Regional StaffDevelopment Centers (RSDCs) were identified, mostly from among local collegesand universities or education offices, and RSDC directors and staff weredesignated and paid from project funds. At the provincial (equivalent toschool division) level, 34 Development High Schools (DHSs) were identified.As these institutions were to arsist the project in managing textbook tryoutand in conducting teacher orientation on the use of the new books, they wereprovided with the necessary equipment (typewriters slide projectors, dupli-cating machines) and, for RSDCs, vehicles. This nk .work concept, intended topromote cooperation in the field, resulted in fragmentation, as the Ministry'sregional offices asserted their legal and administrative responsibilities andeffectively took control of the project in the field.

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Organizaton Chart of the Textbook Board Secætadat

Tex~tbook Boad

Exscutiva D~istorDepuly Director Staffi Summary:

0~ ManaTm hncal 67&~p~o 63

Techncal 2 Total 130uppotd 0

Aciministratlve Office Comptrowlrs Office

PLonnel RecCshBudgetMotor ol ©ccountlng

Technical 4TechIcal 9 &~90' ._Suppt Total 9-Total 33

Editorlal Production Manufbctuing Distribution Tralning &DMdon DMslon DMson DMn Evaluaon DMsion

Eing Copy Editing Paper Procurement sta~ TrolningFEld T«sng Ait & Photo Printing SeMcs Wrehou eearch

DummIng Qualfty Control TefcEvaluationTechnical 17

Technical 7 Technlcal 6 Technica 14 Technical 10

Total 1 7 Supot 24 7Total 8 Total 13 Total Total 17

World Bank-26088

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3.09 Using project funds, the RSDCs managed the summer institute forteachers on the use of textbooks only once, in April-May 1978. After thatyear, the regional education authorities took over all project-relatedactivities and funds; although regional training was still for the most partheld at RSDC sites, the Ministry's regional offices assumed effecive manage-ment of teacher orientation in succeeding years. This shift rationalizedproject administration in that the Ministry's own regional offices rather thanRSDCs which were for the most part private educational institutions wererecognized as the local implementing authority for the project, in accordancewith overall governmental efforcs to strengthen regional-level management.

Manuscript Development

3.10 During the period July 1, 1976 to December 31, 1981, the projectdeveloped 92 elementary and high school titles (51 textbooks, 41 teachermaterials) in the five subject areas (Table 3.01). Of these, two were revisededitions of books issued in 1977 and eight were contributed by three private-sector publishers who participated in the project in 1980.

3.11 As planned, manuscript writing by assigned groups in project-supported CDCs ensured the development of materials that were well-researchedand within the learning capacity of the target grade level. For this, CDCsconducted small-scale testing of individual lessons or chapters, usually innearby schools and in teachers college experimental classes where writersobserved student performance and interviewed teachers. However, even at theonset of the project, manuscript development proved to be difficult owing tothe following: (a) uncoordinated preparation of scope-and-sequence contentplans among CDC writing groups each in charge of a particular gradc within asubject area, among CDCs in charge of specific subject areas, and between theCDCs on the one hand and the Curriculum Development Division of the Bureau ofElementary Education (BEE) on the other; (b) complicated approval systemwithin zhe CDCs; and (c) editorial inexperience at TBS.

3.12 As planned, the UPSEC science and math series, which were in printunder contract with a textbook publisher in the private sector, were revisedto suit the reading level of the public schools and the time available for theuse of the books. This enabled the project to go into the production of thesematerials immediately at the outset of the project in 1976 instead of goingthrough the three-year writing-testing and revision-printing developmentcycle, as was done for the social studies series of SSC and the Pilipino andEnglish series of PNC-LSC. However, this also meant that books of severalgrades had to be revised at about the same time, straining the schedules ofthe newly formed research and writing teams. Because of this, there wereoccasional difficulties in determining the scope-and-sequence coverage forthose books: learning topics were repeated for some grades and altogetherskipped in other grades rather than treated in an order that would graduallyreview, reinforce, and expand children's understanding of basic concepts ormastery of certain skills.

4

TabLe 3.01: T=~O0ES AD TEa KIUlIe DgEP U SV=JECT AD «RADE. 1976-M

1976 1977 1978 1979 1980 1981 Total

El.cte:y Sooke

Science 1 Seence 4 Siece 5 6 Te.sbodeSaee I Tebet' Manual Science 2 Te~bør'@ wan~a Science 3 Teacher Manuel Setc. 4 Teac*er *ta~ul iaece 5 T*embr'0 £di- 4 Tachars~ee 2 Science 3 tioa ~ q.

Science 6 2 ta-ø~ 'editios

12 b~0k

tatb I Sath 2 math 4 Ymte 4 Teacber'* Nanel Nath 5 6 tmatbodko~6 1 TeIcher's Stenet Stth 2 Teche' manmal matk 5 Teacher's Manua 6 Tenchae'.

ikth 3 watt 6 taleieth 3 Tenhr'* Ib~a "ath 6 Teeber'# 1tnael

Pilipine 1, lmok 1 Pilipiac 2 Pulpta 3. langange Pilipi o 3 Teetebr'a r,6 nel riiipit~ i (v. td.) 9 testbooktTilipio 1. Sook 2 Pilipin 2 Te~cher' "on~al P1liplao 3. ~Luding Pilipino 4. etdiog P11piao 2 ( d. U.) a 4 Te~e'*

Ti1~pino i T.e-bo'stuael P111pieo 4, language il ipiao 4 Te~cher'a ?bn~a Stnn

15 Soaku

Social Studie. 1 Soetal Studie 4 Sotal Stidts 5 8 ?OstboekaSocial Studie 1 Techer'* ?b~naa Social Studies 5 Teeber's Naanal t Me,'Sociel Stodies 2 Social Stade 5 (Priv. p~bl.) a 9~mnltScelal Stadie* 2 Ta *' t*nel Social Stadiem 5 Texcher's StnuelSocial Studien 3 (Pilv. pubt.) 16tb- 8eSoieta Studie 3 Techer', "tnmal Social Studine 6Social Studie. 4 T~eh'6 HaStnel Soeial Studie 6 Te~ca'* manmel

Social Studie. 4 (Priv. pu.)ISocial Studie. 6 2e,hec'

(ftv. pe~.> /b

Elish ~ Engøib 2 E tlib I Toocar,'s nt~el Eg1eb 4, So. k 1 6 ibookeEgitab 2 Techr e al Engisb 4. ~,ok 2 3 Te'ber'

ESleb , Sook 1 a 1 ~EgiLb 3. ok 2Englisb I Tethr's Manet 9 Sooke

Sabh School haoka

Science x Science III Scie~. K9 4 TatøbodeScience I Techer's Stnel Sene III Teeor'n Editio Sience X9 Te~cher' Udi- 2 Moncher'*Seience II tietn~Sciene II Th'* Manmal 2 T .. '.se

Nation.

ath XX Sath IV Math I ibth I t~ra'8 uitien 4 Tmtbøekø~eth II o ebar' dition ItVh ITecher'* Editio ib IX ath IX Toebrm Mitten 4 lødehør'

Qdittene

Pi1ipin L Pilipio il 3 tbo~Pilipio I Teachar'* Pilipino 11 Teacher' Seseel 3 1~,che'6

Stanet Piitpino XX (rilv. paml.) /b Se-tPilipao u o Te&cher' W

(Mil. publ.) ~ 6 hoke

Social Stadie. 1 2 Tøttbedk*Social Stadie. II

Eliab I Ei*b I Teacher's Udi- 3 EttbodkoEngish I (Priv. mht.> I tie. 1 1~ ,h*.'.

E~leb I Techer' ~.l (ftv. EngliX 1 tapobt.> ~t Eiab II Toh' Udi- 2 t~ecer'*

tion mittond

B ooke

5 attbøke 4 Tetb~ok. Z ttbooke 8 Te1tbooke 16 Ttbook to Tetbooke3 Ta'he's taønale, 4 2eeber'. hnse 7 Teebør'.senele 3 Techer's anale 14 Teacher' ~ 4nale

I techer'. mition I Techer's gditten I T~hr'* Edition 7 Teache' littioe

$ Sooa 8 hoke 16 1ook12 Sooka 1 hooke Bok17 a 92 0k

l naud edition of 1976 aud 1977 boaks incerporated sa of t* he requiremente otb* eV elem ~ety School carricelas.Ka rep~se to reqeeta trom priVSte scior ebli.ee, the" b~ooke bY private autb~re ere printad aend åetributd by the prøj*et.

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3.13 Because the curriculum body, BETDECCO, (including regiona$units,REBETDECCOs), never became an operational influence on the project,- theissue of lateral linkaging, coordinating the presentation of concepts andskills and giving them about equivalent weight and treatment across subjectareas, was never satisfactorily addressed. Further, the project's CDCs hadminimal collaboration with the Ministry's curriculum unit at the BEE. Shortlyafter the project was launched, this unit issued the Elementary LearningContinuum (ELC) which catalogued the subject matter for instruction in publicelementary school and prescribed the learning expectancies per learning unitin each grade and subject area. With little or no reference to the new booksbeing developed by the project, BEE instructed teachers in the field thatinstruction (and teachers' periodic performance rating) would be based on theELC, creating some confusion and leading teachers to resequence the content ofthe new textbooks and use other materials because they were afraid that thebooks neither covered the ELC completely nor presented lessons in the sequenceprescribed by the ELC.

3.14 Project staff attempted to reconcile the differences during thesummer teacher training sessions in 1977, 1978, and 1979. It was not until1980, when it was time to review the content of the first books issued in1977, that many of the content inconsistencies were corrected for the revisededitions of the same books. By then, preliminary preparations had also begunfor a possible elementary education sector project (later, PRODED), andcoordinative meetings between the textbook project and BEE were initiated.During these meetings which became more frequent in 1981 the need for animproved elementary curriculum was identified and coordinated work among CDCs,TBS, and BEE was established.

3.15 Also according to plans made in 1976, the CDCs prepared piloteditions of textbooks for field testing in 40 schools for one full academicyear. However, the CDC concentration on determining achievement gains ofchildren using the experimental textbooks resulted in complicated instrumentdevelopment for pre-post testing and complex data analysis of achievementtests. Consequently, very little useful data was gathered on such formativeaspects of the tryout as appropriateness of reading level, adequacy of contentfor one full year, teachers' difficulties encountered in the use of the booksand their suggestions for improving the material. With the 40 classroomsrandomly selected, visits to tryout sites proved very difficult, and feedbackdata for the studies could not be gathered and analyzed in time to helpauthors and editors with manuscript revision.

3.16 TBS effectively took control of the textbook tryout beginning1979. With the help of an editorial expert engaged by the project under itstechnical assistance program, a modified scheme was developed and presented tothe Bank for review. The number of tryout classes was reduced from 40 to aminimum Qf 12 for manageability, but representativeness was assured, especial-

7/ As a network-type concept (para. 3.06), it was thought that an advisorybody in the field could be operationalized. However, without formal,legal bases and with little promotion among officials concerned, theconcept failed; BETDECCO met only once.

- 31 -

ly as regards language variations and rural-urban differences. Further, theobjectives of the full year field testing were reviewed and reformulated, withemphasis on gathering feedback directly from teachers and students. Deriva-tive studies, as on impact of the pilot materials on learning achievement,were discontinued; the role of the textbook editor during tryout was enhanced;teachers in the field, previously reluctant to speak candidly for fear ofoffending the visiting authors, provided the needed advice to editors whomthey considered to be more objective. Feedback forms were simplified:although editors devised interview questionnaires, greater use was made ofteachers' marginal notes made on an extra textbook copy given to teachers atthe beginning of the tryout year. In addition to editors' more frequentvisits to the tryout classes, the teachers were given addressed and stampedenvelopes to encourage them to maintain correspondence with the editorsbetween such site visits. In all, the new tryout procedure was satisfactoryto TBS, for it resulted in 3enerating information directly about specificlessons and pages and put manuscrip: revision back on schedule. The CDCsthereafter concentrated on research and writing, collaboration with TBS onmanuscript revision and teacher training.

3.17 At the manuscript revision stage, during start-up operations of theearly years, difficulties were encountered, especially in effecting editorialimprovements on textbook manuscripts submitted behind schedule and after theyhad gone through sometimes complicated approval procedure at the CDCs. It wasonly beginning in 1980 that the idea of involving the textbook editor from thevery beginning of manuscript preparation, (that is, at the planning stage,even prior to writing and field-testing) was generally accepted. From thenon, editors and authors found time to effect necessary alterations in the texton a lesson-by-lesson or chapter-by-chapter basis. Other difficultiesincluded ensuring that permission in writing was secured for all copyrightedmaterial that would be used in the textbooks (a responsibility of the CDCs)and, on the part of TBS, keeping the typesetting, art and page preparationactivities on schedule. The persistent problems of staff turnover or longabsences when staff were away on foreign training, typesetting overload, andunpredictable deliveries by individual illustrators contracted by the projectfrom free-lance sources in the private sector were the most frequent causes ofdelay.

3.18 In spite of the difficulties, however, manuscript development waskept generally on schedule, and 92 book titles, 17 more than the 75 targeted,were developed during the project period. In addition, the learning gains byproject institutions involved in textbook development were considerable. By1981, the various CDCs had identifiable working groups counting specialistsamong them for research and writing. The TBS had evolved by then the basicpublication criteria governing textbook content, readability, book lengthappropriate for the school year, even legibility (including size of type,phrase grouping, word spacing) and type of illustrative material. The text-book development cycle had been tested, and it had been proven that the irre-ducible time required for a textbook was three years. Responsibilities hadbeen carefully delinea.ed among authors, editors, copy editors, graphicartists, and other production specialists. The project progressively producedbooks, each better than that preceding it: the first book produced by theproject was a straightforward, single-color elementary science book with text

- 32 -

and simple line drawings; the last was a complex high school teacher's edi-tion, two-color text and full-color cover, featuring the textbook pages repro-duced in facsimile and integrated with instructive material and photographsfor the teacher's convenience.

Paper, Printing and Binding

3.19 The project procured printing paper, contracted printing and bindingservices, and monitored these contracts up to delivery of books from printersto the project central warehouse.

3.20 Paper Procurement. In all, 16 paper mills from the Philippines andelsewhere were prequalified for supplying "EDPITAF TEXT," a grade of paperwith some wood pulp (general specifications: 66 grams per square meter basisweight, 90% opacity, 72%-76% brightness), adequate to meet the three- to six-year physical life of the textbook.

3.21 The amount (in metric tons) of paper procured was as follows:

1976 1977 1978 1979 1980 1981 Total

Paper 874 3,304 3,413 6,022 7,814 2,502 23,902Cover Stock 106 349 265 264 604 1,588 3,176

Total 953 3,653 3,678 6,286 8t418 4,090 27,078

3.22 In 1977-78, the purchase of paper was part of the required bid ofprospective contractors, that is, under that integrated offer, the printerwould make his own paper purchase. The paper was consigned to EDPITAF, andthe project assisted the printer by securing tax exemption for the purchase.This procedure proved difficult to implement and did not make clear who wasresponsible for the paper which arrived in bulk from foreign mills (thePhilippines does not usually produce EDPITAF TEXT).

3.23 The procurement procedure was modified in 1979 when the projectseparated paper purchase by international competitive bidding from thepurchase of printing services, thereafter done by local competitive biddingwhich also allowed foreign printers to participate. Under the new procedure,the project purchased paper from prequalified mills through local merchantsand assumed full responsibility over ordering, insurance, freight, brokerageand handling, warehousing, and releases to printing companies awardedcontracts to print textbooks for the project. This involved buying paper inenough quantities for one full year's production and replenishing the stockperiodically. The procedure was considered advantageous because it would makepaper available as soon as a printing award was made (saving on time lostwaiting for paper to arrive) and would protect the project from unpredictableprice changes in the international market.

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3.24 TBS was totally unprepared in staff, equipment, experience, andexpertise for the complex management of thousands of tons of paper shipped infrom foreign ports for distribution to various printers. Further, delays ineditorial and art activities and also in processing printing contracts, frombidding through evaluation, award, and Bank and presidential approvalsresulted in the project's having to house up to 10,000 metric tons of paper intwo rented warehouses one of which had a floor area of 5,000 square meters.Printers often complained of delays in paper releases, damaged and unusablepaper released to them, shortages, or issuance of wrong stocks. The questionof accountability frequently arose, as printers used more stock than esti-mated, claiming spoilage, and as they returned unused stock and spoilage. Theusable stock returned was sorted out for conversion (from rolls to sheets),but even this required close supervision by TBS staff who had little or notraining in paper handling and whose assignments were warehouse-keepers andprinting inspectors. By lat 1981, the project still has stock enough for thenext year's book production.-

3.25 Procurement of Printing Services. The project prequalified64 Philippine and 35 foreign printing companies for participation in the bid-ding for the manufacture and delivery of books. The prequalification, done ona continuous basis, included the printer's submission of required documentsand an ocular inspection of facilities to verify their plant capacity. Themaximum capacity rating was put at 50% of evaluated capacity.

3.26 The project's printing output (in number of copies) was as follows:

8/ In early 1982, owing to the many problems about paper, including over-stocking, management, remaindering, and warehouse, TBS suspended furtherprocurement pending review and improvement of paper procurement activi-ties. Current plans include bulk purchasing and staggered deliveries oflimited quantities to avert oversupply and providing markings on thepaper for security.

- 34 -

1977 1978 1979 1980 1981 Total

ElementaryTextbooks 6,110,400 4,004,795 5,939,365 5,762,000 6,048,000 27,864,560Teachermaterial 330,000 162,292 - 883,499 551,000 1,926,692

Total 6,440,400 4,167,087 5,939,365 6,645,400 6,599,000 29,791,252

High SchoolTextbooks - - 656,000 1,209,200 1,262,000 3,127,200Teachermaterial - 15,000 713,590 1,259,910 1,306,300 3,294,800

Total 6,440,400 4,182,087 6,652,955 7,905,310 7,905,300 33,086,052

3.27 The total of 33,086,052 copies were for 78 individual book titlesbidded out in 37 groups, or bid packages. The breakdown of copies printed bybook title and year is presented in Table 3.02.

3.28 In the procurement of printing services, the most serious imple-mentation problems were: (a) delays in contract processing; (b) delays inmaking the master copy of the book to be printed, called "repro" (for repro-duction) materials, available to the contracted printers; and (c) delays incontract completion.

3.29 At the start of each year, TBS prepared its annual work plan forachieving the project targets for development, production, and distribution.The plan included the year's bidding schedule for the contracting of printingservices. This schedule proved difficult to keep and had to be revised two orthree times owing to either slippages in bid schedules and contract prepara-tion or delays in completing the repro in time for contract awards. Theformer was largely due to the complicated approval system for contracting,following governmental regulations, and also to the Bank requirements that itreview each proposed award. A typical award needed to be approved by theTextbook Board, the education minister, and the Office of.the President, andthen by the World Bank. The latter, repro preparation, although planned toproceed in parallel with the bid cycle, frequently was not completed evenafter all procurement approvals had been secured. This was because theprocess involved many stages and complex, collaborative work among writers atthe CDCs for revision of texts after tryout, editorial improvements at TBSwhich then had to be approved again by the writers, and technical production(typesetting, illustration, page make-up, and filming) which had to be prose-cuted meticulously and completely by hand. By 1981, no satisfactory alter-natives had been found to simplify either the approval system or expedite"repro" preparation, although procedures were continually reviewed and moni-toring was intensified.

Table 3.02: TETOOKS AND TEACHER MATERIALS PRINTED, BY SUBJECT AND GRADE, 1977-81

Textbooks Teacher's Manual@/EditionsSubject and grade 1977 1978 1979 1980 1981 1977 1978 1979 1980 1981 Total

Elementary Books

science 1 1,279,200 - - - - 60,00. - - - - 1,339,200Mathematics 1 1,279,200 - - - - 60,000 - - - - 1,339,200Pilipino 1 Sk. 1 1,279,200 - - - - 60,000 - - - - 1,339,200Pilpino 1 Bk. 2 231,800 1,047,400 - - - - - - - - 1,279,200Mathematics 2 991,150 50,000 - - - - 1,041,150Pilipino 2 1,049,850 - - - - 50,000 - - - - 1,099,850ScIence 2 - 933,600 - - - 50,000 - - - - 983,600Science 3 - 975,000 - - - - 45,000 - - - 1,020,000Mathematics 3 - 835,320 - - - - 45,000 - - - 880,320Social Studies 3 - 213,475 668,325 - - - 62,292 - - - 944,092Social Studies 1 - - 1,191,825 - - - - - 114,700 - 1,306,525English 1 - - 1,322,400 - - - - - 116,000 - 1,438,400Social Studies 2 - - 1,062,200 - - - - - 102,600 - 1,164,800Science 4 - - 896,700 - - - - - 53,100 - 949,800Mathematics 4 - - 797,915 98,085 - - 10,000 - 41,000 - 947,000Rnglish 2 - - - 1,083,000 - - - - 103,000 - 1,186,000Pilipino 3 Language - - - 995,000 - - - - 99,000 - 1,094,000filipino 3 Reading - - - 995,000 - - - - - - 995,000Pilipino 4 Language - - - 916,000 - - - - 94,000 - 1,010,000Pilipino 4 Reading - - - 817,915 98,085 - - - - * 916,000Social Studies 4 - - - 857,000 - - - 51,000 - 908,000English 3 Sk. 1 - - - - 1,014,000 - - - 99,000 - 1,113,000English 3 Bk. 2 - - - - 1,014,000 - - - - - 1,014,000Science 5 - - - - 832,000 - - - - 100,000 932,000Mathematics 5 - - - - 832,000 - 10,000 90,000 932,000Social Studies 5 - - - - 624,000 - - - - 75,000 699,000Social Studies 5(Priv. Publ.) - - - - 208,000 - - - - 25,000 233,000

Stieice 6 - - - - 165,915 - - - - 92,000 257,915Mathematics 6 - - - - 720,000 - - - - 92,000 812,000Social Studies 6 - - - - 540,000 - - - - 69,000 609,000

Nigh School Books

Science I - - 270,000 - - - 15,000 - - - 285,000Science II - - 208,000 - - - - 12,900 - - 220,900Math III - - 178,000 - - - - 30,200 - - 208,200Math I - - - 305,000 - - - - - 15,000 320,000Pilipino I - - - 293,000 - - - 14.490 2,220 - 309,710Math II - - - 243,000 - - - - 12,000 - 255,000Pilipino II - - - 60,700 - - - - 4,000 - 64,700

(Priv. Publ.)Pilipino II - - - 182,300 - - - - 12,000 - 194,300English II - - - 125,200 148,800 - - - - - 274,000Social Studies I - - - - 348,000 - - - - - 348,000English I - - - - 226,250 - - - 2,490 12,510 241,250English I - - - - 81,750 - - - - 5,300 87,050

(Priv. Publ.)Social Studies II - - - - 274,000 - - - - 9,270 283,270Science III - - - - 24,000 - - - 4,190 - 28,190Math IV - - - - 159,200 - - - 13,810 - 173,010

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3.30 Contract completion delays were partly the result of implementation

difficulties encountered prior to printing: in contract approval and repropreparation (para. 3.29) and management of paper stocks (para. 3.24). Theywere also partly due to the lack of adequate quality control measures on the

part of the printers. Throughout the implementation period, plant qualitycontrol which in developed countries is a built-in feature among printing

establishments was virtually exercised by TBS. It assigned inspectors to

plants where project contracts were ongoing for supervising the work on the

production floor. During times that the inspector was at another plant, someprinters waited until the inspectors returned to approve a print run or,

worse, went ahead with an apparently unacceptable print run or binding or

packaging. The latter accounted for spoilages of paper and prompted printersto demand more paper than was originally provided for in their contracts.Although the project had sought as early as 1978 to solve this problem bysponsoring a training seminar on printing quality, engaging two American

experts from the Graphic Arts Technical Foundation under the technicalassistance program, the effects of the training were short-lived, as printers

earlier prequalified left the project and new printers joined, and the projecthad since been unable to organize follow-up training.

3.31 The expected onset of the Elementary Education Sector Project(PRODED) also had a "braking effect" on textbook production which had been

gaining momentum since 1977. The Textbook Project's Ten-Year AvailabilitySchedule which had been carefully worked out early on and which containedintricate timetables for manuscript development, paper procurement, printing,

distribution, reprinting, and revision by subject, grade, and individual book

title had to be reviewed in 1980 and completely reworked. This was because

the planned introduction of the New Elementary School Curriculum for 1983-88

meant that: (a) some revised editions of project textbooks already inproduction would precede the curriculum and might not be in conformity with

it; (b) other books scheduled for reissue would need to be deferred in order

to keep materials and curriculum development in phase; and (c) still others

would have to be reprinted to ensure supply in the field until the new

curriculum took effect.

3.32 In spite of those problems, however, the project exceeded by 18% the

appraisal target of 27 million books by having about 32 million books in printby December 31, 1981.

Textbook Distribution

3.33 A distribution unit at TBS was established to ensure timely and

adequate distribution of books to the 40,000 public elementary and highschools throughout the country. This unit managed the distribution network

consisting of a central textbook warehouse in Manila and 152 provincial

warehouses at the regional, subregional, divisional, and subdivisional (or

district) levels of the education ministry's administrative system. Of this

number, some 54 warehouses were constructed under the project.

3.34 Delivery lists for textbooks and teacher materials were prepared on

the basis of the latest enrollment reports and data on number of teachers.

Aside from the field requirement of one book for every two pupils per subject,

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reserve stocks of up to 34% of the field requirement were provided to replacebooks lost or worn out and to meet additional requirements brought on byincreases in enrollment. These reserve stocks were to be kept at the localwarehouset and issued to schools as requested.

3.35 From 1976 to 1981, 12 commercial freight forwarders wereprequalified on the basis of their financial capability, equipment, andexperience. Through public bidding, as many as five at a time among theforwarders were given annual contracts for distribution. The forwarderspicked up book shipments from the central textbook warehouse in Manila anddelivered them to the 152 provincial warehouses. The forwarders were paid inManila upon their presentation of proof of delivery, usually their receiptssigned by authorized officials at the local level.

3.36 Under memoranda of agreement executed yearly with TBS, regionaleducational offices were provided funds to cover expenses for the distributionof books from the local warehouses up to individual schools of their regionand for the hiring of local labor and warehouse security and maintenance. Asof December 31, 1981, some US$3 million (P 33.95 million) had been given tothe 13 educational regions.

3.37 As of December 31, 1981, about 32 million books had been deliveredto the field, as follows (breakdown by subject and grade in Table 3.03):3.38 Beginning 1978, TBS monitoring staff regularly visited about 400schools yearly to determine the quantity of books received. They checked thelocal warehouses, advised field officials on distribution problem-solving andreordering from Manila, gathered their data, and received complaints. At theschools, they checked the condition of the books and the manner of utilizationand maintenance. The yearly visits showed that while some schools had exceed-ed the 1:2 book-to-pupil ratio owing to inaccurate statistics or early releaseof reserve stocks, a number of other schools still had not received theirbooks. It was also discovered that the earliest books issued in 1977, inscience and mathematics for grade 1 and Pilipino for grades 1 and 2, lastedonly two years instead of the intended three years. These books had beenpri..ted on newsprint, before EDPITAF TEXT became the prescribed paper. Tokeep the supply at recommended levels, reprinting was proposed in 1980, butthis was implemented only in 1981. The book supply situation as ofDecember 31, 1981 is shown in Table 3.04.

3.39 Although the distribution network established by thp projectoperated effectively in that books reached the schools, the primary objectiveof having the books reach the schools in time for the opening of classes inJune each year was attained only in the case of a few textbook titles. Asnoted above (para. 3.30), printing delays made it impossible for all titles tobe delivered on time. In addition, faulty and outdated enrollment statisticsprovided by the Ministry's Office of Planning Services resulted in inaccurateprovision of books and flawed enrollment projections. Because of the coun-try's inefficient postal and other communications services, reports of shortdeliveries and misdirected shipments reached the project late. After thefirst two years of operation, the TBS distribution unit began to prepare itsown statistical studies based on these late reports and on actual enrollmentdata its monitors gathered from the field during their visits (para. 3.38).

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Table 3.03: TBXT0O0 AND TACMR MATUUIALS DISTRIBUTRD BY GRADB, 1977-81

1977 1978 1979 1980 1981 TotalBooks Titles looke Titles Books Titles Books Titles looks Titles Books Titles

EleMentary BooksGrade 1

Textbooks 3,442,634 4 880,903 4 1,144,884 5 2,186,079 6 102,927 4 7,757,429 6Teacher materials 144,584 3 - - 3,105 2 258,618 5 4,393 2 410,700 5

Subtotal 3,587,218 7 880.905 4 1,147,989 2,444.697 11 107.320 6 8,168,129 it

Grade 2Textbooke 959,039 2 1,515,653 3 1,202,279 4 775,431 4 864,032 2 5,316,434 5Teacher materials 127,854 3 8,083 1 - - 214,199 4 6,462 3 356,598 5

Subtotal 1,086,893 5 1,523.736 4 1.202.219 4 989,630 8 870,494 5 5,673.032 10

Grade 3Te;tbooks - - 1,742.407 3 1.583,583 5 1,356,112 5 2,043.372 4 6,725,474 7Teacher materials - - 122,823 3 1,364 2 92,559 4 136,955 4 353,701 5

Subtotal - - 1865230 6 1,584,947 7 1,448,671 9 2,180.327 8 7,079,175 12

Grade 4Textbooks - - - - 1,828,485 3 2,761,280 5 401 1 4,590,166 5Teacher materials - - - - 49,077 3 188,434 4 6,499 3 244,010 4

Subtotal -1877.562 6 2949,714 9 6.900 4 4,834.176 9

Grade 5Textbooks - - - - - 508,373 1 1,827.352 4 2,335,725 4Teacher materials - - - - - - - 270,162 4 270,162 4

Subtotal - - - - - - 508373 1 2097514 2605887

Grade 6Textbooks - - - - - - - - 818,447 3 818,447 3Teacher materials - - - - - - - 223,556 3 223,556 3

Subtotal - - - - - - - 1042003 6 1,042,003 6

High School BooksFirst Year

Textbooks - - - - 247,129 1 463,032 3 460,511 4 1,170,672 5Teacher materials - - 859 1 6,895 1 21,619 2 36,663 5 66,036 5

Subtotal - - 859 1 254024 2 484.651 5 497.174 9 1,236,708 10

Second TearTextbooks - - - - 189,140 1 150,372 3 494,554 4 834,066 5Teacher materials - - 1,192 1 7,050 1 1,995 1 22,601 4 32,838 4

Subtotal - - 1 9152367 4 517,155 8 866,904 9

Third YearTextbooks - - - - 171,460 1 17,918 2 12,622 2 202,000 2Teacher materials - - - * 6,411 1 9,119 1 18,933 2 34,463 2

Subtotal 177,071 2 27.037 3 31,555 4 236.463 4

Fourth YearTextbooks - - * - - 132,695 1 26,505 1 159,200 1Teacher materials - - - -- - 13,003 1 668 1 13,671 1

Subtotal z -145*68 2 2 2 1 2

Total 4,674,111 12 4,271.922 16 6,440.862 30 9.150.838 52 7.377,615 61 31,915,348 81

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Table 3.04: TEXTBOOK:PUPIL RATIO AS OF DECEMBER 31, 1981

Year dis- Copies Copies in Book:pupilGrade and subject tributed distributed service /a Enrollment ratio

Elementary TextbooksURade I

Science 1977 1,279,200 667,751 1,708,529 0.78:2Mathematics 1977 1,279,200 667,751 1,708,529 0.78:2Pilipino Book 1 1977 1,279,200 667,751 1,708,529 0.78:2Pilipino Book 2 1977 1,279,200 667,751 1,708,529 0.78:2Social Studies 1979 1,191,825 861,093 1,708,529 1.00:2English 1979 1,322,400 955,434 1,708,529 1.12:2

Grade 2bcience 1978 933,600 73,347 1,469,662 0.78:2Mathematics 1977 991,150 517,386 1,469,662 0.70:2Pilipino 1977 1,049,850 548,028 1,469,662 0.75:2Social Studies 1979 1,062,200 767,440 1,469,662 1.04:2English 1980 1,083,000 920,550 1,469,662 1.25:2

Grade 3Science 1978 975,000 598,772 1,373,315 0.07:2Mathematics 1978 835,320 512,991 1,373,315 0.75:2Pilipino Language 1979 995,000 718,888 1,373,315 1.05:2Pilipino Reading 1979 995,000 718,888 1,373,315 1.05:2Social Studies 1978 881,000 541,535 1,373,315 0.79:2English Book 1 1981 1,014,000 1,014,000 1,373,315 1.48:2English Book 2 1981 1,014,000 1,014,000 1,373,315 1.48:2

Grade 49eIence 1979 896,700 647,866 1,262,874 1.03:2Mathematics 1979 896,700 647,866 1,262,874 1.03:2Pilipino Language 1980 916,000 778,600 1,262,874 1.23:2Pilipino Reading 1980 916,000 778,600 1,262,874 1.23:2Social Studies 1979 857,000 619,183 1,262,874 0.98:2

Grade 5cience 1980 832,000 707,200 1,120,211 1.26:2

Mathematics 1981 671,730 617,730 1,120,211 1.10:2Social Studies /b 1981 832,000 832,000 1,120,211 1.48:2

Grade 6Sience 1981 165,915 165,915 996,573 0.33:2Mathematics 1981 570,000 570,000 996,573 1.14:2Social Studies /b 1981 82,532 82,532 996,573 0.16:2

High School TextbooksFirst YearScience 1979 270,000 195,075 487,646 0.80:2Mathematics 1980 169,825 144,351 487,646 0.59:2Pilipino 1980 286,487 243,514 487,646 0.98:2English /b 1981 308,000 308,000 487,646 1.26:2

Second Yearcience 1978 208,000 127,738 429,706 0.59:2

Mathematics 1980 120,332 102,282 429,706 0.48:2Pilipino /b 1980 243,000 206,550 429,706 0.96:2English 1981 274,000 274,000 429,706 1.27:2

Third YearScience 1980 24,000 20,400 372,714 0.11:2Mathematics 1979 178,000 128,805 372,714 0.69:2

Fourth YearMathematics 1980 159,200 135,320 324,488 0.83:2

/a Number of textbooks still available by December 31, 1981. This is derived bydeducting from the number of copies distributed 15% per year of use which is theestimated annual rate of textbook retirement owing to normal wear and tear.

/b Two textbook titles were distributed: one developed by the project's CDC, theother by a private-sector publisher admitted for participation in the project.

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3.40 The other obstacle to efficient implementation of textbook distribu-tion was the practice of effecting the financial assistance for local distri-bution through channels, that is, from the project through 13 regional officesand 127 division offices. Checks issued by the project or cash disbursementauthorizations were frequently held up in the many offices they were sent to,and subsequent preparation involved in dividing the money for the divisionsand thereafter into school districts took time. During the process, somechecks went stale or the disbursement authority document lapsed, the Philip-pine Government's quarterly financial control over such authorities beingstrictly enforced. Rewriting checks or requesting revalidation of expireddisbursement authorizations had to be done in Manila and required a complexprocedure of reapplication and justification with the national budgetoffice. Local authorities had to advance the money, larg) y at the urging ofproject monitors, and this facilitated the flow of funds.'

3.41 The most serious problem in distribution was the institutionalquestion. The project provided the field with new warehouses, equipped alllocal points of delivery, and paid for their operating cost on the under-standing among regional authorities in 1976-77 that such assistance especiallyas regards staff salaries for the warehouses would be provided on a decliningbasis; the regional offices would increasingly include these costs in theirregular operations and request funds from the national government for thepurpose. The requests for such institutionalization of delivery service atthe local level were in fact made. As of late 1981, however, the Ministry'scentral office has not approved them, and to date some 413 field personnel,mostly warehouse clerks, laborers, radio operators, and security guardscontinue to function as employees hired on a temporary basis. TBS has maderepresentations with the Minister, but action is still pending.

3.42 In terms of physical output, the appraisal target of 27 millionbooks was exceeded t6,18%, as actual delivery performance was about 32 millionbooks (Table 3.03) .- However, maintaining an acceptable level of booksupply in the field proved more difficult even with the provision of reservestocks at the local warehouses (para. 3.31). The target book-to-pupil ratioof 1:2 was achieved for all books only during the year that a new book wasissued (Table 3.04), but the first books delivered deteriorated more quicklythan foreseen. Further, plans initiated in 1980 for curriculum reform by 1983at elementary level (a feature of the proposed sector project) prompted areview of the medium- and long-term textbook reprinting plans. As the plannednew curriculum would be introduced gradually, that is, in one grade levPl peryear, the supportive textbooks and other instructional materials, designed to

9/ Beginning 1982, the audit commission allowed treasury warrants, good ascash, to be issued to the field. This move greatly facilitated themovement of money to finance local delivery of textbooks.

10/ The extension of the project implementation period contributed to theincrease in book production and distribution. As of December 31, 1980,the end of the original four-year implementation period, some 24.5 mil-lion books had been delivered, or 90% of the original target of 27 mil-lion books.

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last from three to six years needed to be produced to phase with the curricu-lum or else become obsolescent long before their physical life was through.The review had the effect of deferring previously planned reprinting, reducingbook supply in the field so that by 1981 gaps became evident again betweennumbers of children and books especially in the middle elementary grades.

Teacher Training

3.43 The general objective of the teaLner orientation component of theproject was to promote the effective use of the new textbooks among 250,000elementary and high school teachers immediately before the introduction of thetextbooks nationwide. Five- to ten-day training programs were developed withthe following specific objectives: (a) familiarize the teacher with the newtextbooks and the appropriate teaching strategies in relation with -he curri-culum, including the learning continuum for the elementary grades: (b) demon-strate the use of the textbook and teacher material in class; (c) plan forcovering the subject matter completely during the school year; (d) acquireadditional subject matter background and identify supplementary and enrichmentmaterials; and (e) prepare sample tests for evaluating student achievement.

3.44 The programs were designed by the TBS training staff in collabora-tion with CDC authors and the Ministry's elementary and secondary educatorswho also acted as trainers. The training programs were convened by ministe-rial order and managed by the Ministry's administrative offices at the nation-al and local levels using funds provided by the project under memoranda ofagreement between TBS and the regional education offices. Trainers and parti-cipants were paid their transportation and living expenses.

3.45 Large numbers of teachers were reached by means of echo training:trainers at national level trained 60 trainers for the 13 regions who trainedabout 1,200 trainors for the 127 school divisions who in turn reached as manyas 100,000 teachers from all districts and schools. The sessions were heldduring the months of April and May when school was not in session, sometimesconcurrent with in-service summer institutes for teachers.

3.46 In nine training programs conducted between 1977 and 1981, some317,986 elementary and high school teachers were trained. In response torequests from the field that non-teaching staff also be given training so thatskills acquired by teachers in summer would be reinforced during the yearthrough effective supervision, some 49,986 academic supervisors, school prin-cipals, and other administrators were also trained. This brought the totalnumber of trainees to 367,836 (Table 3.05), or 47% more than the appraisaltarget.

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Table 3.051 TEACHER ORIENTATION PROGRAMS OF THE TEXTBOOKPROJECT, 1977-81

Year Grade and Subject No. of Trainees

1977 Elementary:Grades 1 and 2 94,442 teachers

science, math, Pilipino,social studies, English

1978 Elementary:Grades 1 and 2 42,466 school administrators

science, math, Pilipinosocial studies, English

1978 Elementary:Grade 3 45,171 teachers


1978 High School:First and Second Year science 10,953 teachersThird Year math

1979 Elementary:Grade IV 41,768 teachers


1979 High School:First and Second Year science 7,384 school administratorsThird Year mathematics

1980 High School:First Year Pilipino 10,030 teachersFourth Year math

1981 Elementary:Grades 5 and 6

science, math, social studies 101,322 teachers

1981 High School: 14,300 teachersFirst Year EnglishSecond Year PilipinoThird Year science

317,986 teachers49,850 school administrators

Total 367,836 trainees

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3.47 Each training program was planned for implementation in phase withthe textbook production and distribution schedules, in accordance with theproject intent that teachers be given training before they actually used thenew textbooks. Production, however, could not keep the schedules committed totrainers at the beginning of the year. Where bidding had been postponed, andprinting foreseeably could not be completed in time for training, special,limited editions were rushed to press. Deliveries of these editions werethemselves frequently delayed and the materials were generally unsatisfacorybecause they were taken from unfinished repro pages and contained typographi-cal and other errors. To solve the problem, TBS departed from the practice ofsetting teacher training targets based on the production schedule for theavailability of new textbook titles. Beginning 1980, programs of trainingwere planned after a review of what had been actually delivered to thefield. This ensured the availability of the new materials before teacherswere called for training.

3.48 Because the RSDC had ceased to function as a regional training base(para. 3.09), many other training-related problems recurred yearly which couldhave been solved had the local institution been put to work. Among these wereinadequate funding provided the local training implementors, traceable tofaulty statistics on numbers of teachers, and the lack of continuing evalua-tion of the effectiveness of the training. Preparation of postcourse trainingreports and liquidation of funds were delayed, and postcourse evaluation wasrudimentary.

Impact Evaluation

3.49 Throughout the project period, a TBS evaluation unit composed ofqualified educational researchers conducted impact studies on 16 textbooktitles in several grade levels of the elementary and secondary curricula.Using a multistage approach, sample units to form control and experimentalgroups were drawn from all regions of the country.

3.50 The effects of the new textbooks on pupil achievement weredetermined by comparing project and nonproject textbook users' averages anddispersion of scores on tests specifically developed for the purpose. Theconfiguration of test data shown in Table 3.06 indicates consistently higherachievement scores among pupils who used the project textbooks.

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Table 3.06: ACHIEVEMENT OF PROJECT AND NONPROJECT PUPILS

No. of Project Pupils Nonproject PupilsGrade and Subject items Mean SD n Mean SD n

ElementaryGrade 1

Science 25 15.07 4.72 1,068 12.18 4.13 1,652Math 25 14.34 4.71 1,068 11.87 4.43 1,652Pilipino 25 15.26 5.36 1,068 12.72 5.08 1,652

Grade 2Science 30 18.84 4.57 1,079 15.88 4.44 1,634Math 30 15.43 5.04 1,070 13.88 4.26 1,634Pilipino 30 17.83 5.92 1,075 15.23 5.25 1,634English language /a 30 12.53 3.76 492 12.28 3.75 1,615English reading /a 25 11.54 4.06 492 11.50 4.10 1,615

Grade 3Social studies 25 12.76 2.36 794 10.25 3.53 1,622

Grade 4Science 40 13.79 4.38 778 13.26 4.66 1,140Math 40 14.11 4.53 779 13.42 4.35 1,140Social studies 40 16.03 5.55 100 16.28 5.16 240

High SchoolFirst year science 50 16.37 2.39 536 10.80 4.03 1,619Second year science 50 25.5 3.16 481 17.80 4.72 1,602Third year math 50 23.5 4.54 629 17.23 5.06 1,609Fourth year math 40 18.06 5.93 152 17.07 4.69 320

!a Although there was only one textbook title for this grade, the pupilswere given two tests for language and for reading.

3.51 Test score achievement showed evidence of the positive effects ofthe textbooks as indicated by the differences on the group averages of projectand nonproject pupils. In 14 out of 16 textbook titles evaluated, statisticsshowed higher learning gains by project textbook users. The percentagedifferences in the average scores between project pupils and nonproject pupilsper grade and per subject are shown in Table 3.07.

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Table 3.07: PERCENT AVERAGE GAIN SCORES OF TEXTBOOK USERS

Social EnglishGrade/Year Science Math studies Pilipino Language Reading

ElementaryGrade 1 11 10 - 10 - -

2 11 6 - 8 1 0/b3 - - 10 - - -

4 1 2 -1/a - - -

High SchoolFirst year 11 - - - - -

Second year 15 - - - - -

Third year - 13 - - - -

Fourth year - 3 - - - -

/a Children evaluated numbered only 100, too low for stable results.7T Children used the textbook for one-half year only.

3.52 A finer analysis of the item-by-item performance of the schoolchildren on the tests showed that the magnitude of textbook effects might havebeen underestimated. Had the test items been weighted, with greater weightsassigned to items that measured complex learning, the project pupils wouldscore even higher because they performed generally better than the nonprojectpupils in test items that measured higher levels of learning.

3.53 In spite of generally higher means obtained by users of projecttextbooks, their average level of performance is below the conventionalmastery criterion of 75% as indicated in Table 3.08. These averages may beconsidered underestimates because the project pupils were tested after havingused the textbooks for one year or less. More importantly, pupil performancein tests such as the ones used for textbook evaluation should not be inter-preted as mastery tests since the tests as constructed were intended not todetermine mastery levels but to detect differences in learning achievementbetween pupils. More specifically, the test items were meant to discriminatethose who learned more from those who learned less. To maximize discrimina-tion, only items that were of moderate difficulty were thus included in thefinal test forms.

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Table 3.08: AVERAGE ACHIEVEMENT OF TEXTBOOK USERS IN PERCENT

Social EnglishGrade/Year Science Math studies Pilipino Language Reading

ElementaryGrade 1 60 57 - 61 - -

2 63 51 - 59 42 463 - - 51 - - -4 34 35 40 - -

High schoolFirst year 33 - - - -

Second year 51 - - - -

Third year - 47 - - -

Fourth year - 45 - - -

Average

3.54 With regard to the classic "learning gap" associated with incomelevels, an analysis of six titles revealed that the existing disparities inlearning between pupils from relatively high and low income groups wereminimized. The correlation index between income and achievement is higheramong nonproject pupils than that of the project pupil group. This suggeststhat the availability of textbooks placed children of poorer families onalmost equal footing with children of relatively higher socioeconomic status.

3.55 In addition to textbook use, the effects of the book-pupil distribu-tion ratio of 1:2 on academic achievement was investigated in grades 1 and2. The assumption that the provision of more textbooks, i.e., a 1:1 book-pupil ratio, would result in higher achievement was found to be true for grade2 pupils, but not for grade 1. The grade 2 pupils with the 1:1 book-pupilratio scored higher than the pupils under the 1:2 ratio. On the other hand,among grade 1 pupils, those under the 1:2 ratio scored higher than those underthe 1:1 book-pupil ratio. Evidently textbooks provided in greater number thanthe project's one book for two pupils could be disadvantageous among non-readers or beginning readers like grade 1 pupils who are also at the learningstage when they are most dependent on their teachers. It is also probablethat the teachers of pupils who were given fewer books, i.e, 1:2 book-pupilratio, maintained tighter supervision over their pupils who had to share abook to prevent disruptive pupil behavior. In the process some teaching-learning events took place.

3.56 On the matter of language, as an indirect way of testing the effectsof language on pupil achievement, a comparison of scores of grade 1 pupils onscience tests administered in English and its translation in the vernacularshowed that the mean scores of those tested in the vernacular were consis-tently higher than those tested in English. This finding suggests that thedegree of learning is difficult to determine in a multilingual situation.

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3.57 A cost-effectiveness study commissioned by UNESCO in 1979 comparedthe annual cost for textbooks per pupil and achievement. The study reportedthat the project cost less than 1% of the total annual per pupil cost and thatthe effects of textbook use as measured by test results showed improvement inachievement at an average of 14%.

Physical Facilities

3.58 According to plan, 43 textbook warehouses were constructed tocomplement the Ministry's network of storerooms. Upon the request of thefield midway through the project period, 11 more were built. Upon completion,the warehouses were turned over to the regional offices together with equip-ment and furniture such as typewriters, file cabinets, calculators,handtrucks, and single-side band radios.

3.59 Office buildings for two CDCs (PNC-LSC, Technological University ofthe Philippines Practical Arts Center as well as for the Palawan State CollegeRSDC) were also constructed on time, equipped, and furnished under EDPITAFsupervision, then turned over to the reciiient institutions upon completion(Annexes 4 and 5).

3.60 For the purpose of textbook tryout and teacher training, 15 RSDCsfor academic areas were provided with vehicles, office, audio-visual, andlaboratory equipment, and selected books and materials. In addition 21 RSDCsfor arts and trades, agriculture, fisheries, and homemaking arts were providedwith tools. (These institutions, however, did not function as planned.)

3.61 From all over the country, 34 high schools were designated DHSs andprovided with audio-visual, office, and laboratory equipment, tools, andinstructional and professional materials.

3.62 Construction of the TBS office-and-warehouse complex at theUniversity of the Philippines campus in Diliman was about 50% completed by theend of 1981. The construction was beset by many problems. During projectpreparations in 1975, the University of the Philippines (U.P.) committed about1.8 hectares of land for the TBS offices and central warehouse. Architecturalplans were drawn in 1976, public bidding for construction was held in 1977,and the contract was approved in 1978. U.P., however, could not relocatethose who were residing on the proposed site. A second site was offered, andfinally a third, but the delay had been great, and construction began only onJanuary 26, 1979. Because of the contour of the new site a replanning of theentire complex had to be done as well as massive earthworks kfilling, adobeclearing, and even the diversion of a creek) not originally included under thecontract. In the meantime budget funds lapsed. The process of reapplicationfor revalidating the expired allotment took nine months. By late 1980 thework was only 40% completed because the scope of work had c:1arged, but 80% ofthe funds, kept at original levels, had been exhausted. In an effort to savethe construction: (a) EDPITAF in 1981 turned over to TBS all supervisionresponsibilities; (b) TBS effected an amended agreement with the contractor ineffect desophisticating the specifications, allowing escalation after thefact, and reducing the completion target to only the central warehouse (defer-ring work on the office buildings)! (c) the Bank allowed the increase in level

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of direct paymeyi,from loan funds, from 30% to 85%, to ease the cash burden ofthe Government. These measures resulted in the completion of the centralwarehouse by late 1981; but local funds had to be sought for the completion ofthe office buildings. A new contract for the completion of the officebuildings was made in late 1982. Construction was resumed in January 1983 andcompleted around the middle of the year.

Technical Assistance

3.63 Some 152 staff-months of foreign expert services were expended. Inthe development of publication programs and in the training of TBS and CDCtechnical staff, five publishing consultants served in management, curriculumdevelopment, and editorial processing; two others advised on paper procurementand art and design during the initial months of operation. In addition,34 short-term experts were engaged by the media applications preinvestmentstudy, and one expert advised the Ministry on the MIS (Annex 6).

3.64 Key staff of TBS placed in on-the-job training in institutions over-seas numbered 19. Among them 42.5 staff-months were used for training in pub-lishing management, editorial work, and textbook design, distribution, andtraining and evaluation. From the various CDCs, 26 staff trained for94 staff-months in curriculum development and textbook writing. In all, thesefellowship provisions totalled 136.5 staff-months (Annex 7). In 1979, on thesuggestion of EDPITAF, the cost of training 89 more fellows for 1,109 staff-months was transferred from the Second Education Projec 2 IDA Credit No. 349-PH), which was closing, to the Third Education Project., However, owingmostly to the unstable appointments at the textbook unit (paras. 5.02 and5.03) 12 out of 45, or about 27% of those sent for technical training underthe fellowship program have left the project.

Mass Media Preinvestment Study

3.65 During the first year of project implementation, an EDPITAF-organized team studied areas in which communication technology could providesolutions to educational problems. In November 1976 the team presented therange of possibilities to the Office of the President in order to obtaindirectives for focusing the study toward specific project proposals. The teamwas instructed to focus on the use of communication technology for two pur-poses: (a) quality improvement in basic education, particularly through in-service teacher training; and (b) educational support for t, ral development.

11/ An amendment to the loan agreement was made on July 2, 1982 to increaseBank's share of financing for civil works.

12/ Under the follow-up Loan No. 2030-PH, technical assistance would beprovided not only to the textbook unit and related governmentalinstitutions but also to individuals and firms in the private sectorassociated with the Textbook Project.

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The study team's proposal for a National Educational Communication Systemreflected this emphasis, including provision for development of an educationalcommunications infrastructure and for a phased implementation of its recommen-dations. The study team's conclusions led to an understanding in June 1977between EDPITAF and the World Bank that the Bank would support a mass mediapilot project. By August 1977, EDPITAF proposed such a project, a Bankmission appraised the proposal in September 1977, and the Bank approved themedia pilot project in December 1977 as a technical assistance loan ofUS$2.0 million.

Management Information System (MIS) Study

3.66 EDPITAF engaged the services of a foreign consulting expert for24 staff-months in 1977-78 to explore the feasibility of organizing an MIS forthe education ministry's Office of Planning Services. The eupert trainedministry staff, produced training and other materials, and developed a majorcomputer program. Under his direction, 71 staff completed MIS training; sixothers were trained in the use of the newly developed Philippine EducationManagement (PEM) kits for training; 24 OPS staff and 750 regional stafftrained on various MIS-related topics. Among the materials developed werefive monographs on planning, budgeting, and general management, three trainingkits and 16 training activity materials on communication and team building,and two occasional research reports on enrollment ratio variability atregional and at divisional levels. The computer program called ENRO-3 (forPhilippine Enrollment Projection Program) was developed and put in operationat the National Computer Center. This program included educational statisticsand alternative 10-year pupil enrollment projections.

The Bank's Role

3.67 The Bank sent 13 missions to the Philippines during the projectperiod. The visits were for the purposes of supervision, evaluation and com-pletion. The early supervision missions focussed on the problems of manu-script development and paper procurement and printing, and were made at inter-vals of six months. In the early 1980s supervision missions were lessfrequent partly because of internal changes within the education division andpartly because textbook production under the project was almost complete.Between April 1980 and January 1982, supervision was incorporated in othermissions, such as the appraisal of the Elementary Education Project which hasa follow-up textbook component. Towards the closing of the project, thedivision stepped up supervision of the project to assist in resolving problemsconcerning civil works.

D. PROJECT COSTS

4.01 At appraisal, the total project cost including contingencies wasestimated at US$51.6 million. The completed project cost amounted toUS$45.09 million, about 13% less than anticipated. A comparison of estimatedcosts at appraisal with actual project costs by category is shown inTable 4.01.

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Table 4.01: APPRAISAL AND ACTUAL COST - THIRD EDUCATION PROJECT(US$'000)

Appraisal estimate Actual cost Variance (%)Category Local Foreign Total Local Foreign Total (Actual appraisal)

Textbook development 6.67 1.01 7.68 2.05 0.36 2.41 -69

Paper 0.26 6.28 6.54 - 16.35 16.35 +150

Printing 3.94 3.22 7.16 3.43 1.92 5.35 -25

Distribution 1.41 0.95 2.36 4.97 0.62 5.59 +137

Teacher training 3.00 0.33 3.33 5.05 0.89 5.94 +78

Technical assaistance 0.47 0.77 1.24 0.17 1.12 1.29 +4

Professional fees 0.13 0.03 0.16 0.11 0.8 0.19 +19

Civil works 2.25 0.97 3.22 3.07 0.66 3.73 +16

Furniture 0.22 0.12 0.34 )} 1.51 2.73 4.24 +2

Equipment 0.38 3.44 3.82 }

Total Base Cost 18.73 17.12 35.85 10.36 24.73 45.09 -

Contingencies 7.64 8.11 15.75 - - - -

Total Project Cost 26.37 25.23/a 51.60 20.36 24.73/a 45.09 -13

/a The loan of US$25 million was reduced to US$24.73 million after US$270,000 for print-ing was cancelled on March 16, 1983.

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4.02 The project closing date was extended twice: from June 30, 1981 toJune 30, 1982, then to June 30, 1983 with a three-month grace period. Inspite of the extensions, the actual overall project cost was less than atappraisal.

4.03 By category of expenditure, however, the project's cost performancevaried, sometimes widely, from appraisal. In textbook development, the outputof 92 book titles written, field-tested, revised, and prepared for printing(17 titles more than the planned 75 titles) exceeded the appraisal target by23%. Yet the cost of textbook development (US$2,409,000 for all titles, orabout US$26,185 per title) was 69% less than planned.

4.04 In paper procurement, the project exceeded appraisal by 150%, thebiggest cost overrun among all categories. This was possibly because of theprocurement mode. Considered advantageous to the project, bulk-buying ofpaper was made on the basis of production plans which we Inot always imple-mented according to schedule, resulting in overstocking.-

4.05 In textbook printing, the 33 million-copy output exceeded the27 million-copy target by 22%, or six million copies. The actual cost ofprinting, US$5,350,000, was 25% less than estimated.

4.06 In distribution, the 31.9 million copies delivered was 4.9 millioncopies or 18% more than the target of 27 million copies. However, the actualdistribution cost of US$5,596,000 was 137% more than the appraisal costestimate.

4.07 In teacher training, the output of 367,836 teachers and schooladministrators reached by the project's various orientation programs was117,836 trainees in excess of the 250,000 trainees provided for at appraisal,an increase of 47%. The actual cost of training (US$5,947,000 or US$16.17 pertrainee) was 78% more than planned.

4.08 In technical assistance, the utilization of the available 326 staff-months for experts totalled only 152 staff-months, or 53% less. On the otherhand, 124 fellows, including 89 from the Second Education Project (Credit No.349-PH), used 1,220 staff-months of training. As the fellowship provisionunder the project was for 56 fellows or 284 staff-months, the excess provisionwas 936 staff-months, or 330% more. However, the actual technical assistancecost of US$1,286,000 exceeded the appraisal estimate by only 4%.

4.09 In civil works and related professional services, the projectperformance measured against appraisal targets was as follows:

13/ Paper stock as of December 1981 was estimated to be adequate for at leastthe 1982 production, at most for up to the third-quarter 1983 production.

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Appraisal Performance

107 Provincial Warehouses 13,749 sq m 54 Provincial Warehouses 5,817 sq m2 CDCs 3,502 sq m 2 CDCs &

1 RSDC 5,516 sq m1 Central Warehouse 4,643 sq m 1 TBS Warehouse & Office

Complex 18,000 sq m/a

Total 21,894 sq m 29,333 sq m

/a In September 1976, the Bank approved the project unit's decision toprovide the TBS with office space within the central warehouse complex.

The project constructed 7,439 square meters more than the estimated area dur-ing appraisal, or an increase of 34%. However, because the actual cost persquare meter, US$127.36, was 2% less than the appraisal estimate of US$130 persquare meter, the actual cost of civil works, including professional fees, wasUS$3.92 million, exceeding the appraisal cost of US$3.38 million by onlyUS$540,000, or 16%.

4.10 In furniture and equipment, the project's expenditure ofUS$4.24 million was 2% more than the appraisal estimate of US$4.16 million.

Unit Costs

4.11 The paper cost per textbook copy printed, net of the value of theoverstock (para. 4.04), was 46% more than appraised. The cost of printing andbinding, on the other hand, was 51% less than appraised (Table 4.02). Theproduction mix of local manufacturing of books using totally imported paperwas about 27% printing and 73% paper, a departure from the industry's rule-of-thumb of a 50-50 even share of printing and paper costs per book as reflectedin the appraisal estimate.

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Table 4.02: TEXTBOOK UNIT COST(US$)

Appraisal EstimatedCost item estimate actual cost Variance

Paper 0.242 0.353 + 46%Printing 0.265 0.129 - 51%

Unit Production Cost 0.507 0.482 - 5%

Development 0.284 0.058 - 80%Distribution 0.087 0.175 +101%Teacher training 0.123 0.180 + 46%

Other Publication Cost 0.494 0.413 - 16%

Unit book cost 1.001 0.895 - 11%

Other project costs:(Civil works, furniture &equipment, professional fees,technical assistance) 0.325 0.285 - 12%

Unit project cost 1.326 1.180 - 11%Contingency allowance 0.583 -Recurrent costs - 0.069

Textbook unit cost 1.909 1.249 - 35%

4.12 Distribution cost per copy actually delivered was double that esti-mated. The unit cost of distribution per textbook was US$0.175 (P 1.93). Ofthat amount, warehousing in Manila was 1.6% (P 0.03); freight-forwarding fromManila to the local warehouse, 13.7% (P 0.26); and local distribution from thewarehouse to the school, 84.7% (P 1.64). Relative to the unit cost of distri-bution the local costs covered by the project's annual financial assistance tothe various education regions were the following: local transportation, 44.4%(P 0.86); salaries of temporarily hired staff, 20.9% (P 0.40); and maintenanceand operating expenses of the local warehouse, 19.4% (P 0.38).

4.13 Although teacher training also incurred a cost overrun of 46%, thevery low textbook development cost made up for it, so that the unit book cost,that is, production cost plus development, distribution, and teacher trainingcosts, was 11% lower than appraised. Likewise, the value of physical facili-ties and technical assistance imputed to every copy printed was 12% lower thanappraised. The actual unit project cost, taking all expenditures against alltextbook output, was 11% lower than appraised. Compared with the appraisalproject cost (equivalent to base cost) including contingency, the actual

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project cost including recurrent expenditure (para. 4.14) was 35% lower thanappraised.

4.14 The e.nnual average recurrent cost of salaries and operating expensesgenerated by the project was about US$30 62.42. In local currency, therecurrent costs,by year were as follows

Peso

1976 833,466.081977 1,611,082.221978 613,836.831979 2,060,780.121980 3,441,742.351981 5,074,778.52

Total 13,635,686.12

Disbursements

4.15 Table 4.03 shows the plan for disbursements for 1976-80 and theactual loan disbursement performance on the extended project, 1976-83. Thefirst year and the last year of the original four-and-one-half-year projectshowed greatest financial activity, exceeding the plan 120% and 12%, respec-tively (Annex 8). The middle years' performance was below the appraisal plan,and the extension to September 30, 1983 for submission of applications forwithdrawal allowed for needed time to effect pending financial transactions.As of the final closing date, all loan funds had been applied for against con-tracts signed as of June 30, 1983, mostly for the completion of the TBS build-ing in Diliman, Quezon City.

14/ At various conversion rates. See Basic Data Sheet.

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Table 4.03: LOAN DISBURSEMENTS, 1976-83 /a(US$ million)

Actual disbursements asa percentage of appraisal

Appraisal Cumulative actual estimateestimate disbursements (%)

1976 .0 .0 01977 1.0 3.0 3001978 5.7 5.0 881979 12.9 7.6 591980 19.0 10.9 631981 25.0 19.9 801982 - 21.9 -1983 - 24.7

Total 25.0 24.7 lb

/a The actual disbursement figures are based on t4e Bank's Loan Departmentrecords.

/b The loan amount was reduced to US$24.7 million on March 16, 1983 whenUS$270,000 intended for a printing contract was cancelled owing tononaward of contract.

E. OUTSTANDING ISSUES

5.01 The "roject introduced innovative approaches for providing learnerswith adequate and quality instructional materials. The integration of thevaried and previously dispersed activities of the textbook development processunder a single management structure implied the evolution of a well-orchestrated project of continuing and long-term duration. Because theproject was dynamic, complex, specific in output and time-bound, it wasexpected that the undertaking would not be impervious to a broad range ofimplementation problems. The more significant ones are cited below. Theyconcern the institutionalization process, the issue of increasing privatesector involvement, and implementation problems still unresolved at the timeof project completion.

Institutionalization

5.02 The management structure established lacked the flexibility andauthority to promote self-viability in textbook and institutional materialsdevelopment, production, and distribution. Two organizational studies, donein 1978 and 1981, recommend the transformation of the project unit into agovernmental corporation to enable it to run more efficiently and effectivelyon a self-sustaining and long-term basis. A smooth transition in operations

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from TBS into the Instructional Materials Development Corporation (IMDC) wasintended to take place prior to the activation of a second-phase project in1982 (Annex 3). These arrangements embodii,in the presidential directive toestablish the new body, were not approved.,

5.03 On a related issue, there was difficulty in attaining ana maintain-ing the desired proportion of qualified staff for the project technicalstaff. This upset work schedules for textbook development and production.The cause was attributed to the lack of an attractive compensation scheme. Inthe new textbook corporation, the compensation and benefit plan would have tobe competitive with private industry to attract and retain competentpersonnel.

5.04 With the current concern over the need to engage the private sectormore actively in the project (para. 5.05), the role and future of the CDCsneed to be described. The continuous flow of publishable textbook manu-scripts, once assured under the project network which included sustainedsupport of the CDC authors, researchers, consultants, and other specialists isnow in jeopardy especially as the new Elementary Sector Project needs learningmaterials to support the New Elementary School Curriculum not as yet availablefrom private sector sources.

The Private Sector

5.05 The prevailing sentiment among textbook publishers in the privatesector was that the project hampered the growth of the book industry, despiteinitial steps taken by the project toward soliciting greater private sectorparticipation. The project licensed private publishers through public biddingfor the exclusive right to print and sell commercial editions of project text-books. When publishers complained that bidding depressed prices unnaturally,the exclusivity clause was removed and reprinting fees were charged instead,open to all comers on free price competition. The project also admitted booksdeveloped by the private sector into the project. Under this arrangement, Lhepublisher sold limited, government-edition rights to the project which thenpaid royalty to the publisher based on quantities printed and distributed.Although all paper, printing services, and delivery services were procured bythe project from the private sector, the book publishers remained convincedthat for as long as the Government itself originated manuscripts their ownexistence was threatened.

F. CONCLUSIONS

6.01 On balance, the twofold general objective of the project--productionand institutionalization--was attained. Relevant and apparently cost-effective textbooks and teacher materials were developed, printed, and distri-buted. The institutional network for all textbook-related tasks was built anda central agency was organized with qualified managers and specialists tomanage the large-scale nationwide operation.

15/ A new presidential decree institutionalizing the TBS as part of aneducational foundation is being submitted to the President for approval.

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6.02 However, the risks identified at appraisal, although outweighed infact by the benefits derived from the project, persist6d. On the one hand,the system's ability to sustain production so that book supply in the fieldwould always be adequate was less than evident. Book gaps began to be feltagain in 1981, as the ratio between books and school children widened, espe-cially for subject and grades served earliest, in 1977 and 1978; revision andreprinting were late. The commitment to maintain the established institutionsseemed doubtful. The CDCs after 1981 had no cl 19 mandate to proceed alongdevelopment lines conceived seven years before. Within the context of theGovernment's newly emergent policies on curriculum reform by the Ministryunder a new elementary sector project and on eliciting support from publishersin the private sector for the origination and supply of instructionalmaterials, the CDCs seemed destined to play the marginal, residual roles ofproviding technical support or filling development gaps that otherinstitutions might not have filled.

6.03 The question of the TBS' own existence would be of greatest concernto both the Government and the Bank. The process of legalizing the status ofthe project into a permanent body had been slow, despite frequent urging bythe Bank. Although studies were made regarding the legal, financial, andtechnical options for making TBS the permanent textbook development unit ofthe Government (Annex 3), opinions varied as to the nature of the permanentinstitution. The Ministry of Education, Culture and Sports developed theconcept of a regulatory body (Instructional Materials Council) to replace theTextbook Board and a separate proprietary body (Instructional MaterialsDevelopment Corporation) with its own equity, to be staffed from the ranks ofTBS. Other governmental agencies, notably the Office of the Budget andManagement and the Presidential Reorganization Commission advised that aregular service unit within the Ministry would sufficiently carry out thepurposes of educational publishing for the Government. The issue took timefor resolutirn, and although the legal measure for institutionalizing the TBSwas submitted to the Office of the President, it was not approved. It isforeseen that the regulatory council IMC would be established in line with thelarger-scale reorganization of the education ministry, and TBS would be perma-nentized as a regular office of the ministry directly responsible to theMinister of Education, Culture and Sports.

II. OBSERVATION AND LESSONS LEARNED BY THE BANK

7.01 The Third Education (Textbook) Project largely achieved the objec-tives of institutionalizing and expanding the supply of textbooks. However,several institutional issues remain unresolved and are being addressed in theElementary Education Project.

16/ Two CDCs were abolished: the Central Luzon State University in 1979 andthe Ministry's own Social Studies Center in 1982.

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Observations

7.02 Institutional Coordination. Despite the project's success in build-ing a network for the development and production of textbooks, several flawsexisted in the system. One major one is the poor linkage between curriculumand manuscript development. The preparation of scope and sequence contentplans among manuscript writing groups was not coordinated with the CurriculumDevelopment Division, causing redundancy in the coverage of some textbooks.The coordination of the various production activities was further complicatedby the decision in 1980 to introduce a new elementary education curriculum by1983. Textbook production plans had to be revised. Book supply was reducedso that by 1981 textbook shortages became evident again.

7.03 Legal Status of Institutions. Weaknesses in the system's linkagescan be traced to the ambiguous status of the coordinating bodies. The curri-culum advisory body, BETDECCO, lacked the formal legal basis to enforcelateral linkaging and coordinate the presentation of concepts and skillsacross subject areas. Another important issue is the states of the TBS, whichremained by the end of the project a temporary unit under the Ministry of Edu-cation. This has caused the agency to suffer, among other difficulties, theloss of trained staff due to absence of job security. Two organizational stu-dies recommended the transformation of the unit into a governmental corpora-tion to enable it to run more efficiently and on a permanent basis.

7.04 Approval and Disbursement Procedures. The approval system forcontracting is couplicated and time consuming. This often caused delays inprinting and textbooks reached the schools late. Also, disbursement for dis-tribution expenses had to go through many channels before reaching the localoffices. During the process, the disbursement authority document sometimeslapsed and had to undergo a complex revalidation procedure.

7.05 Paper Procurement. In the beginning years of the project, paper wasprocured by the printer as part of the printing contract. The paper was con-signed to EDPITAF, which assisted the printer by securing tax exemption forthe purchase. This procedure was difficult to implement and did not makeclear who was responsible for the paper when it arrived in bulk from over-seas. The procurement procedure was modified in 1979 when the responsibilityfor paper purchase was assigned to the project unit and separated from thepurchase of printing services. However, TBS was not adequately staffed orequipped for the management of thousands of tons of paper. Delays in edito-rial and art activities and in processing printing contracts resulted in over-stocking of paper, one of the reasons for cost overruns. Printers often com-plained of delays in paper releases, damaged and unusable paper released tothem, shortages or issuance of wrong stocks.

7.06 Role of Private Sector. The role of the private sector remainedunclear at the end of the project. Private publishers felt that Government'sinvolvement in developing manuscripts hampered the growth of the book indus-try. The Government's latest policy is to elicit support from publishers inthe private sector for the origination and supply of instructional materials,but this has the effect of downgrading the institutions designated as Curricu-lum Development Centers under the project. Two CDCs have been abolished and

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the rest seemed destined to play the marginal, residual roles of providingtechnical support or filling development gaps.

Lessons Learned by the Bank

7.07 The project provided useful experience that helped shape the follow-up textbook component in the Elementary Education Project. Based on thisexperience, the latter project made the following provisions:

7.08 Institution-building. In order to give the textbook agency theauthority and support it needs to carry out its functions, it was recommendedthat the TBS be converted into a permanent government corporation, theInstructional Materials Corporation. The new management structure would pro-vide the flexibility and authority to promote self-viability in textbookdevelopment, production and distribution which the TBS lacked. The projectalso recommended the formation of an Instructional Materials Council, an inde-pendent body responsible for approving textbooks and other instructional mate-rials appropriate for the curricula in elementary and secondary schools. Towiden representation, the Council would have an expanded board of directorschaired by the Minister of Education and include publishers from the privatesector.

7.09 Revised Distribution and Procurement Practices. To reduce thedistance between stocks and end-users, an additional 26 warehouses would bebuilt in the new project. In addition, the regional warehouses would beauthorized to deliver directly to schools rather than through the provincialand district offices of the MEC as in the first textbook project. Budget pro-visions would be made to the regions to carry out distribution responsibili-ties and a local ordering system would be instituted to reduce the incidenceof delivery shortfalls and surpluses. Also, a paper procurement system thatwould replenish paper stocks amounting to estimated annual requirements wouldbe introduced. Arrangements with an international bank were proposed toexpedite the forwarding of documents required for off-loading in Manila.

7.10 Private Sector Participation. To clarify the role of the privatesector and promote the development of a healthy publishing industry, MEC wasrequested to complete the plans for purchasing instructional materials fromprivate publishers, including statements on related incentives and the limitsof Government's publishing responsibilities. The private sector would also berepresented in the Instructional Materials Council (para. 7.08).

-60- ANNEX IPage 1

MALACANANGMANILA

PRESIDENTIAL DECREE NO. 687

FURTHER AMENDING THE TEXTBOOK LAW, ACT 2957 AS AMENDED, PROVIDING THEGUIDELINES IN THE SELECTION, APPROVAL, PRICING AND DISTRIBUTION OF SUITABLETEXTBOOKS FOR USE IN PUBLIC ELEMENTARY AND SECONDARY SCHOOLS AND FOR OTHERPURPOSES.

WHEREAS, the Board on Textbooks performs the vital function ofselection and approval of textbooks for use in all public elementary andsecondary schools, including the approval of textbooks used in private ele-mentary and secondary schools;

WHEREAS, in order to perform this function effectively and properly,it is necessary that the Board be composed of persons with the highest com-petence, dedication and integrity, with authority to avail of such technicalassistance as may be necessary to insure proper evaluation of manuscripts andthe selection and adoption of quality textbooks for use in the public schools;

WHEREAS, the objective of selection and production of quality text-books can be achieved by allowing open and free competition in the submissionof manuscripts by qualified writers and the production thereof by duly re-gistered bonafide publishers, encouraging at the same time the production of

textbooks by competent research staffs in government-organized curriculumresearch and development centers;

WHEREAS, the assessment of production costs of any textbook adopted

by the Board for the purpose of determining prices at which textbooks can besold at the minimum cost require the adoption of a scheme whereby a fair andjust appraisal thereof can best be arrived at;

WHEREAS, a degree of control in the actual procurement and alloca-tion of textbooks needed in the field should be exercised by the Board toinsure the equitable distribution thereof based on needs;

NOW, THEREFORE, I, FERDINAND E. MARCOS, President of thePhilippines, by virtue of the powers vested in me by the Constitution dohereby order and decree to be part of the laws of the land, the following:

SECTION 1. The Board on Textbooks created under the provision ofAct 2957 as amended is hereby renamed the Textbook Board. The Board shall becomposed of seven (7) members as follows: A Chairman and four (4) membersappointed by the President upon recommendation of the Secretary of Educationand Culture, the Director of Elementary Education and the Director of Secon-dary Education. The Chairman and the other four (4) members appointed by thePresident, one of whom shall represent the cultural minority, shall serve aterm of three (3) years, except that of the four first appointed, two (2)shall serve a term of three (3) years and the other two (2) for a term of two(2) years. Any vacancy in the Board shall be filled by appointment by the

- 61 - ANNEX 1Page 2

President but the person so appointed shall serve only for the unexpiredterm. No person shall be appointed to the Board unless he is a citizen of thePhilippines, with at least a master's degree or its equivalent in terms ofprofessional experience, status and achievements.

SECTION 2. The Textbook Board shall have a Secretariat composed ofpersonnel as are now provided under the Integrated Reorganization Plan.

SECTION 3. The Board may avail itself, at any given time of suchnumbev of qualified personnel from the public or private sector to perform thefunction of appraisal of manuscripts submitted for evaluation and selection byauthors or by duly registered book publishers. They shall be entitled to suchhonorarium for their services for such amount per title as may be determinedby the Board.

SECTION 4. The Board shall determine and adopt its own guidelinesor rules and regulations for their operational procedure. It shall adopt suchpolicies as will insure a fair and objective appraisal of manuscripts sub-mitted to it for evaluation, the criteria for the final selection and approvalas textbooks and a policy on continuing evaluation of those approved andadopted by the Board. It shall likewise undertake studies from time to timeon the textbook situation in the country, seek ways and means for their pro-duction at minimum cost, and adopt policy guidelines in the allocation anddistribution of textbooks in accordance with the procurements program of theDepartment of Education and Culturq.

SECTION 5. The policy of free enterprise on the matter of allowingthe submission of manuscripts by writers or duly registered publishers forpossible selection and adoption as textbooks shall be without prejudice to theautomatic adoption by the Board of any treatise, textbook or manual on thesame subject prepared by agencies authorized by the Government; Provided,however, that in the case of the latter, the printing or production thereofshall be farmed out to qualified textbook publishers or printers under suchguidelines as may be prescribed by the Board.

SECTION 6. The manuscript thus selected and approved by the Board,in accordance with Sec. 5 hereof, shall be printed in such number of copiesand under such guidelines as the Board may direct, such copies to be used fordetermining the reasonable price at which the book shall be purchased by theGovernment, provisions of existing law to the contrary notwithstanding. Forthis purpose, there shall be created by the Secretary of Education andCulture, a Price Committee consisting of three (3) members, one Board memberrepresenting the Board as Chairman, one representing the PhilippinesEducational Publishers Association, one representing the Bureau of Printing.The Committee shall hold its meetings on the date set by the Board which shallbe in the nature of a public hearing, allowing expert testimony therein inorder to arrive at an acceptable estimate of production cost for any giventextbook. The determination of the "mark-up" in percent over the productioncost for any textbook to insure a reasonable profit for publishers and at thesame time insuring the minimum procurement cost for the Government shall bedetermined by the Board.


SECTION 7, It shall be unlawful for the Board to consider foradoption any treatise textbook or manuscript in whose authorship, editorshipor preparation a me ber of the Board may have direct or indirect interest. Itshall, likewise, be unlawful for any member of the Board during the period ofhis incumbency to own directly or indirectly any interest whatsoever in anyfirm, partnership or corporation on publishing or dealing in school textbooks.

SECTION 8. Except in exceptional cases as may be determined by theBoard, the textbooks selected and approved shall be used for a period of atleast six (6) years from the date of their adoption. Private schools re-cognized or authorized by the Government shall, as much as possible, usetextbooks approved by the Board. The Board shall have the power to prohibitthe use of any textbook in private schools other than those approved by theBoard, which it may find to be against the law or offensive to the dignity andhonor of the Government and people of the Philippines or which it may find tobe against the general policies of the Government or which it may find aspedagogically unsuitable.

SECTION 9. The Board shall, as a matter of policy encourage thewriting of textbooks for Philippine schools by Filipine authors using suchPhilippine sources of subject material as will develop in pupils and studentsa deeper sense of nationalism, respect for Philippine institutions andappreciation of our cultural heritage.

SECTION 10. For administrative purposes, the Textbook Board shallbe directly under the Office of the Secretary of Education and Culture. TheChairman of the Board shall have authority, with the approval of the Depart-ment Head, to obtain the technical assistance of such personnel from anydepartment, bureau or office of the Government which may be considerednecessary for the proper performance of its duties, with compensation fortheir services as may be determined by the Board.

SECTION 11. Members of the Board shall be entitled to an allowanceof One-Hundred (P100.00) Pesos per meeting actually attended but not exceedingFour Hundred (P400.00) Pesos a month, exclusive of reimbursement of actual andnecessary expenses incurred in attendance of meetings and other officialbusiness authorized by resolution of the Board.

SECTION 12. The sum of One Hundred Thousand (P100,000.00) Pesos orso much thereof as may be necessary shall, in addition to the regular annualappropriations for the operation and maintenance of the Textbook Board, beappropriated annually from funds of the National Treasury not otherwise appro-priated to carry out the provisions of this Decree.

SECTION 13. All laws, decrees, executive orders or existing rulesand regulations contrary to or inconsistent with the provisions of this Decreeare hereby repealed, amended or modified accordingly.


SECTION 14. The Decree shall take effect inmediately.

Done in the City of Manila, this 22nd day of April, in the year ofOur Lord, nineteen hundred and seventy-five.

(SGD.) FERDINAND E. MARCOSPresident

Republic of the Philippines

By the President:

(SGD.) ALEJANDRO MELCHORExecutive Secretary


MALACANANGMANILA

LETTER OF INSTRUCTIONS NO. 873

VESTING IN THE TEXTBOOK BOARD THE CONTINUING DEVELOPMENT, PRODUCTION, ANDDISTRIBUTION OF TEXTBOOK FOR THE PUBLIC SCHOOLS AND ESTABLISHING ANADMINISTRATIVE MACHINERY THEREAT

TO: THE MINISTER OF EDUCATION AND CULTURETHE MINISTER OF BUDGETTHE CHAIRMAN, COMMISSION ON -,UDIT

WHEREAS, one of the educational development projects under the Ten-Year Educational Development Program as embodied in Presidential DecreeNo. 6-A is the design, utilization, and improvement of instructional techno-logy and development/production of textbooks and other instructionalmaterials;

WHEREAS, the critical shortage of textbooks in the public schoolscompelled the Philippine Government to enter into a Loan Agreement with theInternational Bank for Reconstruction and Development (IBRD) to finance aTextbook Project which under said Agreement was to be initially managed by theEducational Development Projects Implementing Task Force (EDPITAF) in coordi-nation with the Textbook Board of the Ministry of Education and Culture;

WHEREAS, a Textbook Project staff was created as a precondition tothe effectiveness of said Loan Agreement;

WHEREAS, with the termination of the Loan Agreement by Year 1981,the Philippine Government will, as a national policy, continue with the Text-book Project for Philippine schools under the supervision of the Minister ofEducation and Culture through the Textbook Board;

WHEREAS, the Textbook Board as established and organized underPresidential Decree No. 687 is not in a position to adequately and effectivelyperform the continuing development, production, and distribution unless it isprovided with the necessary administrative services and qualified technicalstaff to pursue the Textbook Project efficiently;

NOW, THEREFORE, I, FERDINAND E. MARCOS, President of the Philippinesby virtue of the powers vested in me by the Constitution do hereby order anddirect that:

1. The Textbook Board shall have an administrative unit adequatelystaffed with accounting, budgeting, administrative and otherregular supportive personnel. The unit shall be headed by theDirector of the Textbook Project.

2. The present Textbook Project staff which has been assigned withEDPITAF shall now be transferred to the Textbook Board andprovided with full personnel complement needed to insure


effective completion of the present Textbook Project by Year1981. The hiring and compensation of the Textbook Projectstaff shall be exempt from existing regulations governingappointments and compensation of government employees.

3. The Textbook Board shall have the power to hire personnel,engage the services of technical consultants and other experts,and enter into contracts and negotiations necessary in theimplementation of the Textbook Project.

4. In accordance with the provision of Presidential DecreeNo. 6-A, the Textbook Board in implementing the TextbookProject shall be empowered to import articles, materials,equipment, machinery, and supplies free from all dutieL, fees,imports, and all other charges and restrictions imposed by theRepublic of the Philippines or any of its agencies or politicalsubdivisions.

5. The Minister of Budget shall see to the additional appropria-tions for the Textbook Board to carry out its additional func-tions.

6. The Chairman, Commission of Audit shall assign a ResidentAuditor to the Textbook Board.

Done in the city of Manila, this 13th day of June, in the year ofOur Lord, nineteen hundred and seventy-nine.

(SGD.) FERDINAND E. MARCOSPresident

Republic of the Philippines


Republika ng Pilipinas(Republic of the Philippines)

MINISTRY NG EDUKASYON AT KULTURA(MINISTRY OF EDUCATION AND CULTURE)

Manila

June 1, 1981

MEC 0 R D E RNo. 27, s. 81

I.M.C. MANAGEMENT TEAM

To: Bureau DirectorsRegional DirectorsCultural Agency DirectorsChiefs of Services and Heads of UnitsSchools Superintendents

1. In order to more adequately prepare for future dealings with WorldBank representatives on the proposal for the Instructional Materials Corpora-tion (IMC), there is hereby established an ad interim Management Team with thefollowing as members:

Deputy Minister Abraham I. Felipe ........ ChairmanAtty. Tomas V. Santos ............... Vice ChairmanDirector Pacifico N. Aprieto .............. MemberRepresentative of PresidentialManagement Staff ......................

Director Minda C. Sutaria

2. Prof. Ernesto A. Franco will serve as Consultant to the Team.

3. The Team will ensure smooth and effective integration of the Text-book Secretariat with the Instructional Materials Corporation in accordancewith an appropriate legislation. Specifically, the Team will undertake thefollowing:

(a) General review of operations of the Textbook Board Secretariat(TBS) so as to determine status and conditions of projects,contracts, assets and liabilities, and personnel situation;

(b) Review of the World Bank agreement to ensure compliance con-sistent with the integration objectives; and

(c) Formulation of corporate plan, including legal documentation,for the IMC.

-67 - ANNEX 3

Page 2

4. The Team shall undertake all necessary steps to achieve this inte-gration not later than August 15, 1981. It shall submit a status report tothis Office w4thin this time.

Immediate dissemination of this MEC Order to all concerned forproper guidance is requested.

(SGD.) ONOFRE D. CORPUZMinister of Education and Culture

Reference:

NONE

Allotment: 1-2--(D.O. 1-76)

To be indicated in the Perpetual Indexunder the following subjects:

BUREAUS & OFFICESOFFICIALSREPORT

- 68 -ANNE 4

PHILIPPINES

THIRD EDUCATION (TEXTBOOK) PROJECT (LOAN 1224T-PlI)


Project BuildinRe and Textbook WarehousesBy IAcafloni ,Se ani-Cstrttroi aMt

Buildings/varehousees Region City/province

Textbook Board Secretariat National Quezon City 2,720 9,075,142.50(TBS) Complex Capital

Region(NCR)

TE central warehouses NCR Queson City 1,960 5,704,000.00

Philippine Normal College - NCR Manila 2,088 2,986,528.24Language Study Center

Philippine College of Arts and NCR Manila 1,712 2,542,086.65Trades - Practical Arts Center

Textbook warehouse I Abra, Bangued 42 52,119.35Bontoc, Mt. Province 42 51,168.35Laoag, Ilocos Norte 63 62,858.07Lingayea, Pangasinan 175 123,819.61San Fernando, La Union 210 309,810.00Vigan, Ilocos Sur 42 52,298.35

Textbook vareho"se II Basco, eatanes 42 52,000.35Cabarroquis, Quirino 42 52,000.351lagan, Isabela 210 308,886.00Tabuk, Kalinga-Apayao 42 51,940.35Tuguegarao, Cagayan 42 77,242.35

Textbook warehouse III San Fernando, Pampanga 210 303,310.00

Palawan Teachers College - IV Palawan 1,390 1,914,408.36Staff Development Center

Textbook warehouse IV Aurora, Baler 42 52,000.35Calapan, Or. Mindoro 175 260,111.00lucena, Quezon 140 126,943.92Odionggan, Roablon 42 58,926.35Puerto Princess, Palawan 63 72,009.07San Jose, Oce. Mindoro 42 58,926.35

Textbook warehouse V Daet, Camarines Norte 175 260,141.00Ligao, Albay 140 126,242.92Masbate, Masbate 84 82,944.35Pili, Camarines Sur 84 82 817.35Virac, Catanduanes 42 58,862.35

Textbook warehouse VI Bacolod City, Negros 0ec. 210 203 054.97Iloilo City, Iloilo 175 200,572.15Kalibo, Aklan 63 84,295.55San Jose, Antique 63 88,710.55

Textbook warehouse VII Cebu City, Cabu 210 194,488.97Dumaguete City, Negros Or. 105 117,520.55Tagbilaran, Bohol 63 91,798.55

Textbook warehouse VIII Borongan, Eastern Samar 140 230,985.00Calbayog, Samar 63 124,656.00Catarman, Northern Samar 42 92,308.97Nassin, Southern Leyte 42 69,495.97Ormoc City, Leyte 42 64,850.97Taclaban City, Leyte 140 146,906.82

Textbook warehouse IX BongSao, Tavi-Tawi 42 153,611.97Dipolog City, Zeamboanga del Norte 63 88,524.55Isabela, Basilan 42 119,089.97Jolo, Sulu 42 146,706.97Pagadian, Zambonaga del Sur 210 356,279.00Zamboanga City 175 181,959.15

Textbook warehouse 1 Butuan City, Agusan del Norte 84 106,829.82Cagayan de Oro City, Misamis Or. 105 128,048.55Osamis City, Misamis 0cc. 63 81 616.55Sirigao City, Surigeo del Norte 84 117,491.82

Textbook warehouse XI Davao City 210 212,226.97Gen. Santos City 84 155,142.82Lianga, Surigso del Sur 42 58,362.97

Textbook warehouse XII Cotabato City 140 146,305.52Iligan City, Lanso del Norte 63 84,573.55Kidapawan, North Cotabato 175 289,090.00Koronadal, South Cotabato 175 289,090.00Tacurong, Sultan Kudarat 140 245,000.00

-69- ANNEX 5

PHILIPPINES



Equipment Procured, by Type and Beneficiary Institution

Quantity per institution TotalType of equipment TBS DEC-MIS DEC-RO CDC RSDC DHS ECO DLRC EDPITAY PDO/CDO quantity

VehicleCar, Bantam Nissan model I 1 - - - - - - - - 2 unitsToyota Hi-Ace Commter 2 1 2 3 5 - - - 13 unitsToyota Hi-Ace Delivery Van 2 - 1 - - - * * * 3 uniteToyota Land Cruiser 1 - 10 - 1 - - - - 12 unitsForklift 2 - - - - - - - - - 2 units

AudiovisualVideo-tape recorder - - - 7 11 - ~ - - - 18 lotsVideo tapes - - - 60 103 - *- - - 160 pces.Cassette player - - - 17 223 - 394 - - - 634 setsCassette tapes - - - 4,520 42,057 - 12,810 - - - 59,387 pes.Projector set 3 1 - 8 112 124 91 126 - - 521 setsDarkroom equipment 14 - - 1- - - - - 15 setsCamera equipment - - - 6 13 - - - - - 19 setsFilm loops and player - 1 - 17 188 142 20 - - - 372 unitsFile strip - 17 - 109 168 109 109 - - - 512 uniteTransparencies - - - 18 112 64 46 - - - 240 unitsTelevision set - - - - 6 - 2 - - - 8 unitsPower supply set 5 - - 9 10 - - - - - 24 unitsBobagraphic Rurocat photo-composition I - - - - - 1- - - unit

Public address system - - - 2 - - - - - - 2 lotsIntercom system 24 - - 7 - - - A - - 8 units

Office EquipmentDuplicating machine 3 1 13 12 131 94 11 123 2 - 390 unitsSmall offset press - - - 1 - - - - - - 1 unitDictating machine - - 3 - - - - - - 3 unitsBinding-punching machine 1 - - 4 - - 2 - - - 7 uniteTypewriters 48 24 11 12 75 25 3 109 3 237 547 unitsCalculators 122 36 13 5 26 24 - - 21 - 247 unitsAdding machine 152 - - - - - - - - 92 244 uniteStapler 7 63 - 15 - - - - - - 85 unitsPuncher 11 6 - - 13 - - - - - 30 unitsPrinting equipment 1 - - 1 - - 14 - - - 16 unitsFire extinguisher 12 - - - - - - - 12 units

Laboratory Equipment andMaterialsChromegatrol - - - - 14 - - - - - 14 unitsMicromega focuser - - - - 8 - - - * - 8 unitsPaper testing equipment 1 - - - - - - - - - 1 unitLaboratory apparatus andmaterials - - - 381 20,573 - - - - - 20,954 units

Chemicals - - - - 1,448,126 - - - - - 1,448,126 gas.Maps/charts - - - 12 212 - - - - - 224 pes.

FurnitureSteel cabinets 73 - - - - - - - - - 73 unitsTables and chairs 151 - - - - - - - - - 151 unitsStand and shelves 24 - - - - - * - - - 24 unitsBeds with mattresses 11 - - - - - - - - 11 setsRefrigerator 2 - - - - - - - - * 2 unitsElectric fans/air condi-

tioner 4 34 - - - - - - - - 38 units

BooksReference, encyclopedia 786 - 2,339 - 1,308 - - 4,433 cps.

- 70 - ANNEX 6

PHILIPPINES


TAOJECT COMPLETION REPORT

Foreign and Local Consultants Engaged, by Field ofExpertise and Beneficiary Institution

Beneficiary institution/consultants (foreign and local) Field of expertise

Textbook Board Secretariat (TBS)- EDPITAFMr. Ander Richter (F) Publishing managementMiss Linda Scher (F) Editorial managementMr. Peter Bender (F) Arts and designMr. Donald Maricovics (F) Paper procurementMr. Leslie David (F) Curriculum developmentMr. Stephen Banta (F) Editorial managementMr. James Rose (F) Management information systems

Philippines College of Arts andTrade (PCAT)

Mr. Daya Amanda Perera () Practical arts (curriculum development)

Preinvestment Study of Communica-tion Technology on Education(PIS-CTE)Dr. Lester Goodman (F) Senior consultant on PIS-CT projectDr. Harold Oxley (F) Senior consultant on PIS-CTE projectMr. Jack Soifer (F) Media planningMr. Chaiyong Bramahwong (F) Media productionMr. John Shaw (F) Radio productionMr.Lian Fook Shin (F) Media administrationMr. Albert Horley (F) Systems analysisMr. James Janky (F) systems analysisMr. Stuart Wells (F) Economics/cost analysisMr. Steven Russel (F) Cost analysisMr. James Barewald (F) Cost analysisDr. Gloria Feliciano (L) Evaluation/researchDr. Josefina Patron (L) Media planningDr. Aurelio B. Calderon (L) Education planningEngr. John Lauengco (L) AdministrationMrs. Zenaida Domingo (L) Media planningMr. TowAs Revuelta (L) Media administrationMs. Ielicidad Consignado (L) Development informationMs. Rachel Cabato (L) hconomiceMr. Gregorio Morales (L) Transmission engineeringMr. Conrado Cansion M Broadcast engineeringDr. Nora C. Quebral (L) Development communicationDr. Frine Jimenes ( Formal educationDr. Higino Ables (L) Agricultural extensionDr. Tito Contado (L) Agricultural extensionDr. Concesa Baduel (L) Teacher training educationDr. Galicano Datu (L) Teacher training educationDr. Dolores Hernandes (L) Teacher training educationDr. Leticia Salazar (L) Teacher training educationMrs. Balbina Codilla (L) Teacher training educationDr. Romeo Saplaco (L) Teacher training educationDr. Flore xino Librero (L) Rural developmentDr. Remigio Romulo (L) Rural developmentMr. Marulo Angeles (L) Rural development

-71 - ANNEX 7

PRILIPPINES



Fellowship Availment by Area of Study and Beneficiary Institution

Beneficiary institution/ Staff-fellow Area of study months

Textbook Board Secretariat

Aprieto, Pacifico Publishing management 1.50Roque, Socorro Publishing management 5.00Javier, Alberto Book design and art 5.00Baradi, 81 vino Warehousing operations 2.00Reyes, Remedios de los Editorial and other publishing practices 5.00Maglambayan, Ballegui Teacher training 2.00Brawner, Films Educational statistics and data computerization 2.50Miranda, Epifania Administrative management of publishing organizations 2.00Jesus, Minerva de Manuscript development and editorial management 2.00Aguilan, Reuben Textbook warehousing and distribution system 2.00Coronel, Irma Program evaluation, educational testing and cost bene-

f it analysis 2.00Sanchez, Fel1sberta Distribution operations and management 1.00Espiritu Santo, Florinia Distribution operations and management 1.00Abcede, Marietta Distribution operations and management 1.00Corrales, Reynaldo Book manufacture, paper technology and quality control 1.00Tibayan, Marciano Printing and paper knowledge and procurement procedures 1.00Lleva, Nadja Printing and paper knowledge and procurement procedures 1.00Apolonio, Nellie Formative evaluation of textbooks and related materials 25.50Serrano, Julieta Editing and production procedures 2.00

Technolosical Universityof the Philippines (TUP)Gonzales, Flora Curriculum and manuscript development, practical arts 2.00Trinidad, Carloc Curriculum and manuscript development, practical arts 1.50Adiviso, Bernardo Curriculum and manuscript development, practical arts 1.00Vergara, Jose Curriculum and manuscript development, practical arts 1.00Baking, Rodolfo Curriculum and manuscript development, practical arts 1.00

Ministry of Education andCulture - Social StudiesCenter (MEC-SSC)Agustin, Marlita Curriculum and manuscript development, social studies 3.75Salasar, Leticia Curriculum and manuscript development, social studies 1.50Mateo, Estelita Curriculum and manuscript development, social studies 3.00Hidalgo, Fe Curriculum and manuscript development, social studies 0.50Somera, Lirio Curriculum and manuscript development, social studies 3.00Luis, Lidinila Curriculum and manuscript development, social studies 3.00Palensuela, Gloria Curriculum and manuscript development, social studies 3.00Duran, Aurea Curriculum and manuscript develorment, social studies 1.00Andrada, Lolita Curriculum and manuscript development, socipl studies 1.00Ibarrola, Concepcion Curriculum and manuscript development, socia studies 0.25Andres, Pacita Curriculum and manuscript development, social studies 40.00

Philippine Normal College(PNC)Castillo, Eas Curriculum and manuscript development and language

testing 11.*50Sibayan, Bonifacio Curriculum development 2.00Espiritu, Clemencia Curriculum development 2.00Gusan, Estefania Curriculum development 2.00Cortez, Lilia Curriculum development 2.00Otanes, Fe Bilingual education 1.00Eclipse, etelita English for special purposes 2.00Pabellon, Josefina Curriculum development 2.00Regano, Beneto Curriculum development 2.00Sangel, Rodolfo Curriculum development 2.00

Total 136.50

- 72-* ANNEX 8

P1IIIIPPINES

TID EDUCATIOU (TEX?B00K) PROJECT (LOAN 1224T-PIH)

PROJECT COMPLTION 88R t

cattented and Actual Project At Ytear and Tpe of Expeoditure

Tetbook developeentCurriculum U l. t Paper Printing, Delivary of Total

Civil furni- Equip- Profeseonal Technical Teacher eanuscript writing Edittag & Testing 6 brokerage binding & prototype 6 projectworks tore anet services Assistance training 6 teeting publishing feedback & handling packaging textbooks costs

1976wpralsol eatt"ste 3- 39 462 65 620 - 822 522 609 1,613 - - 4,752Actual cost 16 348 24 145 164 900 572 30 57 - 338 68 2,636

(2,576) (1,073) (6,660) (4,233) (150) (4253) (2.500) (500)Actual costs as X of appraieal

estimate (4 or -) - -95 +123 -73 * -30 -96 -90 -* * -44

1977rppraisal estiate l 3.177 300 3,556 113 486 1,077 1.099 593 694 1,891 1,864 621 15.499Actual cost L I.395 544 - 420 927 265 10 8 1,774 323 251 5,917

(10298) (6.859) (1,962) (77) (31) (2,594) (1,83Actual costs as I of appraisal -3 -2 -5.6-4)

estteats (+ or -) -56 -85 - -13 -13 *75 -98 -98 *6 -82 -59 -61

1978ippratlal estimate la 1,362 96 1,115 23 351 1,164 2.116 673 786 2,211 2,151 708 12.768Actual cost /b - 775 424 - 180 899 228 30 724 2,030 742 970 6,279

(5.669) (6,580) (1,671) (223) (5.299) (5,428) (7,098)Actual coats as I of appraisalestimate (+ or -) -43 -64 - -49 -22 -89 -95 -99 -8 -65 +37 -50

1979Vpraisal estimate /a - - - - 93 1,255 - 1,220 1.425 4.176 2,433 800 11.402Actual cost /b 333 658 - 185 1,015 83 36 7 3,192 1,972 1,028 8,509

(2,447) (7,448) (610) (267) (52) (14.476) (7,548)Actual coats as 1 of appraisal

estimate (+ or -) + - - - +98 -19 - -91 -99 -23 -18 +28 -251980=ipraisal estlaste ia - - - - 35 1,260 - * - - 4,426 1,455 7,176Actual cost b - 43 - 16 300 917 36 139 7,248 923 1,585 11,215

(2,235) (6,822) (252) (4) (6.870) (11,796)Actual costs as I of apprateal

estimate (+ or -) -- - -37 -76 - - - - -79 +8 +56

1981Tpraisal estimate Is - * - - - - - - - - - - -Actual cost - 389 118 1,906 83 58 - 2,106 952 1,694 7.306

(14,875) (646) (449) (7,428) (13,221)Actual costs as I of appraiaal

setimate (4 or -) - * - - - - - - - - - - -

1982Ipraisal estimate /I - - - - - - - - . - . - .Actual cost Ab - 1,914 - - - - . - . - - .

Actual costs a. Z of appraisalestimate (+ or -) - - - - - - - - - - - - .

1983IFpraisal estimate /0 - - - - - - - - . - - - -Actual cost Lb 885 241 42 54 - - - - - - -

(8,738) (410)Actual costs as I of appraisal

estimate (+ or -) - - * - - - - - - - - . -

Totalvpraisal estimate /a 4 539 443 5,133 201 1,591 4,756 4,037 3,008 3,S14 9,897 10.894 3,584 51,597Actual cost b 3736 4,137 187 1,286 5,947 2,148 18 73 16,350 5,350 5,596

Actual costs as X Of appraisal (29 728) (1,483) (4,465) (15944) (17,362) (514) (39,096) (42016) 45,098

eetiate (+ or -) -18 -24 -7 -19 +25 -46 -93 -97 +65 -1 +56 -12

/ Appraisal cost Includes contingency allowances - physical and price increases.7 Figures in brackets are peso equivalent in thousands.

Documents

World Bank Documentdocuments.worldbank.org/curated/en/... · SOUTELE - Survey of Outcomes of Elementary Education SSC - Social Studies Center of the Education Ministry TBS - Textbook