Summary of the Terminal Evaluation
I.

Outline of the ProjectCountry: Islamic Republic of Afghanistan

Name of the Project: Strengthening of
Non-Formal Education

Sector: Basic Education

Form of assistance: Technical cooperation
Project

Office in charge:
Basic Education Team 1, Group 1 (Basic
Education),
Human
Development
Department

Amount (at the time of evaluation):¥311,146,000

Duration

Supporting organizations in Japan: Japan
International Cooperation Agency(R/D) February 19, 2004

Implementing organization in the recipient
country: Deputy Minister of Functional
Literacy (DMFL)

3 years (March 26, 2004 ~ Other related cooperation: Support for
March 31, 2007)
Expansion and Improvement of Literacy
Education in Afghanistan (LEAF)
1. Background and overview of cooperation
Afghanistan carries a big population of persons who have not been given an
opportunity for primary education under the influence of armed conflicts extending over a
period of more than 20 years. It is an urgent issue for Afghanistan to develop humanresources that will support a new society.
Japan, since immediately after theestablishment of the Afghanistan Provisional Administration, has been actively promoting
its assistance for the area of education with the purpose of “Human Resource
Development.” In August 2002, the Ministry of Education in Afghanistan announced its
reconstruction and development plan for Education Sector in Afghanistan which placed
priority on the issues of providing a universal education opportunity, improving education
environment (living environment improvements, quality improvements and increases in thenumber of teachers) and revising curricula and teaching materials.
To address these issues, JICA has been extending its cooperation by dispatching
Long-term experts to the Ministry of Education with the aim of improving the capacity for
public education system, accepting participants in training for reeducating female teachers
for whom employment opportunities have not be available for a long time, andrehabilitating and reconstructing school facilities in the city of Kabul. However, there arestill a host of people who cannot enjoy the benefits of public education including adults
who have not been able to benefit from educational opportunities or children for whomgoing to school has been difficult. Therefore, it is also an emergency issue to extend
assistance to Non-Formal Education to persons who cannot be covered by public education,
and Japan’s cooperation was requested.
Against this backdrop, JICA announced publicly a Non-Formal Education
assistance project as a proposal-type technical cooperation Project in Afghanistan andselected the proposal provided by the National Federation of UNESCO Association in
Japan (UFUAI) after careful screening. Based on the proposal, the Project formulation
study (April 2003) and ex-ante evaluation study (September 2003) were conducted. In
February 2004 the Record of Discussions (R/D) was signed and exchanged with theGovernment of Afghanistan to agree on the Project’s basic plan.
2. Content of cooperation(1) Overall goal
To reinforce Non-Formal Education in Kabul.
(2) Objective
To develop model-Community Learning Centers (CLCs) for Non-Formal Education.
(3) Outputs
1. To develop learning materials for Non-Formal Education (literacy, life-skills, andoccupational training) programmes.
2. To increase the capacity of teachers by delivering training programmes for literacy
and life-skill education.
3. To enable each CLC management committee to run its CLC and to enable local
people to receive education.
(4) Inputs (at the time of evaluation – partly including the finalized plans)
Japan side
Dispatch of short-term experts:
12 persons in total
76M/M
Acceptance of participants:
21 persons in total
7M/M(Third-country training)
Provision of equipment:¥9,502,000
Local costs:¥120,006,000 (including ¥18,179,000 for CLC
construction costs)
Afghanistan side
Assignment of counterparts:
5 personsProvision of land and facilities:II.

Outline of the evaluation study teamMemberDurationof study
III.

Land for CLC (at 3 sites)

Leader:NobukoKAYASHIMA

Director, Group 1 (Basic Education),
Human Development Department, JICA

Education
evaluation

Tomoko MASUDA

Senior Advisor, JICA

Evaluation Yumi TOKUDA
planning

Basic Education Team 1, Group 1(Basic Education), Human
Development Department , JICA

Evaluation Satoru TAKAHASHI
analysis

Senior researcher, IMG Inc.

Nov. 29 ~ Dec. 14, 2006

Type of evaluation:
Terminal Evaluation

Summary of the evaluation result

1. Achievement of the Project objective(1) Outputs of the Project
The Project achieved sufficient outputs in the following three issues:a. To develop learning materials for Non-Formal Education.
The following seven types of teaching materials have been developed for learners.
1
2
3
4
5
6
7

Title
How to write Dari
How to write Pashto
Calculation Practice Book
Our Environment
Pre – and Post-Natal Care for Mother andBabiesNeedlecraft
Afghanistan Country Cooking Book

Language
Dari (D)Pashto (P)
D&P
D&P
D&P

Number of copies
2,500
800
D 2,500 & P 800
D 3,000 & P 800
D 3,000 & P 800

D&P
D&P

D 2,500 & P 800
D 2,400 & P 800

b. To increase the capacity of teachers by delivering training programmes for literacy
and life-skill education.
Literacy teachers apply the teaching techniques that they have learned in training totheir daily teaching. Training for literacy teachers was held for four times, inwhich 158 persons in total participated. Training for teaching material developers
was held two times, in which 92 persons participated in total. The following tableindicates the teaching materials used in the training.

1

Title
Literacy teacher’s guide video

Language
D&P

2

Teaching Aid Development Manual (Form I)

D&P

Number of copies
Video 24, VCD 10,
DVD 10 in eachlanguage
D 2,500 & P 2,000

c. To enable each CLC management committee to run its CLC and to enable local
people to receive education.
CLC has discussed various issues through the Community Learning Center
Management Committee (CLCMC) and built a mechanism to solve problems.
Currently, CLC is managed by CLCMC including both administrative officials(from the sub-bureau of the Literacy Department) and resident’s representatives.
The CLCMC meetings are held every two weeks. The following teachingmaterials have been developed for the operation of CLC. By using thesematerials, workshops, seminars and training courses were held 40 times in total, in
which officials from the Literacy Department, the director of the sub-bureau of the
Literacy Department, and CLCMC members participated totaling to the number of
1,010 persons.

1
2
3
4

Title
CLC Management Picture Book
CLC Supervisor Picture Book
Non-Formal Adult Education Facilitation
Video
CLC Management Video

5

CLC Management
Book (Draft)

Guideline

Framework

6

Local Rule Enforcement Kit (FORM II)7

CLC Manual (Draft)

Language
D&P
D&P
D&P
D
D
D

D&P

Number of copies
D 2,000 & P 2,500
D 2,000 & P 800
D Video 40, DVD 5,
P Video 40, DVD 5
Video 50, VCD 10,
DVD 10200
Poster 4 types x 120
each, Sticker: 3 types
x 240 ea.
D 500 & P 500

The Project Design Matrix (PDM) lays down the indicators that 1,500
persons will receive literacy education and that 35% of them will pass a final test.
In fact, approximately 750 learned at three CLC’s, which failed to reach theindicator. Main reasons for the failure lie in two factors: first, the initial target was
set at a higher goal in comparison to the size of the facilities, and second, thecompletion of CLC construction lagged behind by nine months than the plan. The
number 750 is neither necessarily small nor spoils the effectiveness of the model
CLC’s. Two hundred and seventy nine (279) persons, 37% of 750 persons,completed the literacy course. At present 330 persons are undergoing the course.

In the life skills course 759 persons have been registered so far, out of
which 269 persons completed the course and 261 persons are learning. In
addition, 270 persons are taking continuing study courses (Koran, English,
computer, electricity, and supplementary lessons, etc.) for which no period has been
set.
Through learning how to read and write, these learners are able to write
letters, understand the signboards of stores, read newspapers, and help their children
or siblings with their studies at home. They say that they have become moresociable and forward-looking in their lives. Some of the persons who havecompleted the literacy course (ordinarily, those who have completed the literacy
course are admitted into the fourth grade of public education) were directly
admitted into the seventh grade or the eighth grade for their excellent grades.
Another example is that one student of the tailoring course became skilled to theextent to which he was able to sell his clothes during the course. Likewise, a few
students of the tailoring course put up a signboard to begin a small-scale business athome after the completion of the course. Another case has been confirmed inwhich a person who has finished the beauty course works as a professional
beautician.
CLC serves the whole community as well as its individual student. To
put it more specifically, CLC is used for a wide range of social and culturalactivities and events, thereby functioning as a public place where the residents have
fun or get to know people.
The following table indicates the numbers of CLC users during the past
one year.
District
5
8
12
Total

Oct.
150
260
160
570

2005
Nov.
60
180
320
560

Dec.
50
100
30
180

Jan.
30
50
80

Feb.
20
150
170

April
520
1,474
828
2,822

May
550
774
928
2,252

2006
June
520
601
508
1,629

July
450
534
828
1,812

Aug.
736
40
1,283
2,059

Sept.
420
100
240
760

Oct.
890
130
500
1,520

(2) Objective: “To develop model-Community Learning Centers (CLCs) for Non-Formal
Education.”
Three CLC’s were completed during the period from June to September in 2005.
At present, they are run by the sub-bureau of the Literacy Department and regional
residents, but the former conducts daily office work. CLC has the following three
features, and a model-CLC for Non-Formal Education has been evidently established.

(a) Collaboration between public administration and community
It cannot be expected that residents in urban districts will get involved of their own
accord in promoting Non-Formal Education. The primary reason is that many urban
residents have returned just in recent years after the end of prolonged civil wars, andcommunity has not yet been fully formed. Hence, in this Project CLC was constructedunder the leadership of public administration (Literacy Department). However, CLCMC
was established together with residents, whereby it became possible to reflect residents’requests in CLC activities through CLCMC. This democratic and participatory approachsuccessfully functions. Each CLC responds flexibly to its local diverse needs.
(b) Combination of the literacy course and the life skills course
The primary beneficiaries of CLC are women and children. They have a strong
yearning to learn skills which will enable them to earn earnings to help their livelihoods aswell as their wish to learn how to read and write. In addition to literacy, CLC offers
wide-ranging courses of skills for life (tailoring, beauty, computer, English, Koran and etc.)
to meet the needs of learners. Furthermore, CLC is constantly equipped with sufficient
textbooks, teaching materials, computers, and other teaching aid equipment which thecourses held in private houses will never be able to offer. In fact, it was confirmed that all
literacy learners took a tailoring course simultaneously at CLC in districts 5 and 8.
(c) Function as key points in local communities
CLC offers a public place where residents are able to get together or learn together
with a sense of safety. Different from Non-Formal Education classes held at private
home, it is often the case that the family members of female learners (in particular,
husbands and elder brothers who have negative views on women’s education) give
permission to leave house and attend a class. In addition, CLC fulfills the function as key
point in a local community. That is, various social and cultural events are held, thereby
offering a valuable place where strangers are able to get to know one another. Thus, it isused as multi-purpose facility: it is open to all community residents and all people
regardless of their ethnicity are able to enjoy learning and socializing equally.
(3) Overall goal: “To reinforce Non-Formal Education in Kabul.”
It is expected to attain this goal on coming days, but a meticulous and elaborate
plan will be needed to do so. From the above-stated features and current circumstances,
CLC is one of effective approaches to strengthen Non-Formal Education in Kabul. The
Ministry of Education correctly understands the effectiveness and significance of CLC in a

local community. At present, the Ministry of Education plans to establish 442 CLC’s
throughout the nation. This plan is included in the Five-year Education Strategy which isunder preparation by the Ministry of Education. Besides, the Literacy Department plansto set up a CLC section in its Program Designing Division with the aim of strengthening
Non-Formal Education through CLC.
Such measures and efforts by the Ministry of Education can be highly evaluated.
However, the construction of 442 CLC’s needs time-series careful and elaborate planning.
The Ministry of Education suggests that one CLC be established in each district, but webelieve that it is not necessary to stick to the idea since there are wide disparities between
urban and local regions in the population and area of each district.
2. Results of the five evaluation criteria(1) Relevance: Very high
The New Constitution of Afghanistan declares the eradication of illiteracy in
Article 44, and the importance of Non-Formal Education has been repeatedlyemphasized in some policy documents issued by the government of Afghanistan. On
the other hand, the government of Japan lists assistance for Non-Formal Education as
one of priority aid issues in the Basic Education for Growth Initiative (BEGIN)
announced in the year 2002.
(2) Effectiveness: High
Extensive effects were produced at individual and community levels in the processof building a model CLC. At the same time, a model CLC has three features ((1)
collaboration between public administration and community, (2) combination ofliteracy course and life skills course, (3) function as key point in a local community).
On the other hand, the model CLC built under this Project is a typical model ofso-called urban CLC’s. That is, the three CLC’s are all situated in the city of Kabul,and officials from the Literacy Department regularly work at CLC. Accordingly, it isdesirable that the model CLC be first verified in other districts in Kabul, followed byverification in other main cities. In case when CLC is constructed in rural areas, acareful plan is required and in some cases, the model CLC may need somemodifications.
(3) Efficiency: Moderate
All inputs (C/P assignment by Afghanistan side, provision of CLC sites, dispatch ofexperts by Japan, provision of equipment including CLC construction, and overseas

C/P training) were carried out as scheduled. Nonetheless, the Project’s efficiency was
lowered, first, by the fact that it took nine months to prepare land (for transfer to the
Ministry of Education from the city of Kabul) and, second, by the fact that all Japaneseexperts had to leave Afghanistan temporarily for Japan during the period from
September to December 2004 with concern over deterioration in security owing to thepresidential election. The completion rate of the literacy course is 37%, which needs
to be improved in light of the inputs and outputs. Likewise, it will be needed to cut
back the initial costs of CLC.
(4) Impact: Very highAn extensive impact has been observed at the levels of the individual, the region,
the district, and the central government (ministry). Some examples are enumerated
below.
Literacy learners became more sociable and began to take a forward-looking
attitude towards various matters.
Regional residents were able to get to know one another through various activities.
In the initial rehabilitation stage, CLC gave people the feeling of the advent of apeaceful new age.
The sub-bureau of the Literacy Department could have its permanent office within
CLC.
Enlightenment activities and a wide range of items for the International Literacy
Day not only heightened general citizens’ awareness of literacy but also contributed
to elevating the status of the Literacy Department.
The Ministry of Education correctly understands the effectiveness and significanceof CLC in a local community. It plans to build 442 CLC’s throughout the nation,
which has been included in the Five-year National Education Strategic Plan.
(5) Sustainability: High
Different from many other non-governmental organizations (NGOs), CLC did not
spend a massive amount of money (for remunerations and entry fees) to attract teachers andparticipants. People perceive CLC as the place of learning and socialization. It is
assumed that there will be a number of people who want to learn at CLC in the future as
well. As long as CLC is run in consideration for social, cultural and demographic issues,
it is expected that it will continue to meet diverse needs among community residents.
Currently, two CLC’s are above the profit line, whereas one CLC is below the
profit line. However, the scrutiny of the CLC’s accounts demonstrates that CLC hasestablished its foundation towards its financial sustainability. At least, CLC has amechanism to discuss and solve problems through CLCMC. On the other hand, it will
inevitably face the necessity of additional expenses such as facility repairs and purchase of
equipment/supplies, expendables, and wood for fuel, etc. Hence, we would like toemphasize the importance of taking into account some actions for collecting or raisingfunds from the region, municipal governments, and the private sector.
3. Factors contributing to achieving the outputs(1) Factors related to the contents of the planThis Project was designed in the way in which the public administration (Literacy
Department and its sub-bureau) would take an active role in its activities, which greatly
contributed to the achievement of its outputs. The public administration took an activerole in carrying out household surveys to reap regional needs, making various teachingmaterials and a CLC operation manual, hiring teaching staff, preparing courses, andmanaging CLC. It would have not been possible only for residents to take suchinitiatives. An active role performed by the public administration contributed to the
opening of CLC and setting its activities on the right track.
(2) Factors related to the implementation process
CLCMC, which was organized by involving resident’s representatives to collectdirect voices accurately and periodically from community residents, obviously enabled
CLC to offer flexible and diverse courses of skills for life in response to residents’ needs.
4. Problems and factors causing the problems(1) Factors related to the contents of the planNo particular deterring factors were found in the plan.
(2) Factors related to the implementation process
As abovementioned, the Project’s efficiency was lowered by two factors. The
first is that it took nine months to prepare land (in transfer from the city of Kabul to the
Ministry of Education). The second is that all Japanese experts had to return to Japan in
the period from September to December 2004 with concern over deterioration in security
due to the presidential election. It deserves a special mention that the Afghanistan side
assiduously went on with the Project’s activities during the absence of Japanese.
5. Recommendations and Lessons Learned

5-1 Recommendations【What the implementation team should do by the end of the Project】(1) Documentation of CLC modelThis Project operated three CLC’s on a trial base, thereby accumulating valuable
experiences about the CLC model. Currently, the preparation of a CLC manual is inprogress by using valuable experiences and the model for CLC constructed based on such
experiences. The manual should fully include exemplary cases of valuable experiences,make mention of the possibility and limit of the CLC model, and provide appropriate
guidelines for spreading CLC throughout the nation in the future. We suggest that asummary brochure be made as well.
(2) Public relations and extension activities of the CLC model
The CLC model is indeed useful for a variety of administrative organizations anddevelopment organizations that support Non-Formal Education. It will contribute to theenhancement of Non-Formal Education through sharing the model with many relatedorganizations. Hence, prior to the end of the Project, it is recommended to organize aworkshop to introduce the CLC model and deepen discussions as to its possibility and limit
by using the above CLC manual and a summary brochure. It is further recommended thatthe workshop should be held by inviting related organizations in Afghanistan such as the
Ministry of Labor, Social Affairs, Martyrs, and Disabled, and development organizations
including the United States Agency for International Development (USAID), the United
Nations Educational, Scientific and Cultural Organization (UNESCO), and the United
Nations Children’s Fund (UNICEF).
(3) Elucidation of CLC model’s cost
CLC adopted a number of ideas, for example, about the method of involving
residents and the way in which activities are carried out. On the other hand, the CLC
costs have not been fully examined. The case in point is, the CLC manual draft which isunderway does not contain an overall picture of necessary costs. It is planned that theFive-year National Education Strategic Plan which is being prepared by the Ministry of
Education will include a program to establish 442 CLC’s. In order to materialize theextension program as early as possible, it is a must to conduct a cost analysis of the model
CLC from its construction to operation. To start with, the costs of the three CLC cases
should be disclosed. In the case of CLC’s under this Project, the initial investment in theconstruction of the facilities was costly (¥7 million/CLC). Hence, some measures should
be explored to cut back the amount as well.

【What should be done as medium/long-term measures after the end of the Project】(4) Exploration on how to use the CLC model more broadlyThis Project tested all the three CLC’s within the city of Kabul, where CLC
functioned concurrently as the sub-bureau of the Literacy Department. This enabled CLC
to have its stable operation. No facilities which could function as key point in the urban
district were available, and so new facilities had to be constructed with the Project money.
In fact, this brought about a result that the facilities provided a safe place where women
were able to gather together. However, no sub-bureaus of the Literacy Department arelocated in local and rural areas, and it will be difficult to make a big initial investment.
Thus, it will be necessary to review the model further or to take some other measures todisseminate CLC’s under different circumstances. For instance, possible measures may
be, as to the former, partnerships with local administrative organizations such as theCommunity Development Council (CDC) and, as to the latter, the expansion of the
sub-bureaus of the Literacy Department.
(5) Searching for the ways to improve the sustainability of CLC
CLC’s under this Project have turned out to be successful in general by balancing
the revenue and expenditure of CLC with various ideas. However, the needs forvocational training at CLC constantly change. It will become necessary to prepare new
equipment/supplies and teaching materials for opening a new training course in the future.
In the current situation, it will not be easy for a sub-bureau or any community to address
this issue, although admittedly it depends upon the types of equipment and the content ofteaching materials. In order to deal with such a situation, essential will be to develop
further the capacity for Project planning and management (particularly the capacity for
financial affairs) or to deepen partnerships with other fund sources (donors and NGOs).
5-2 Lessons Learned
This CLC Project’s activities were limited only to the city of Kabul, but thefollowing lessons were obtained.
【Lessons as to the operation of CLC】
(1) Significance of CLC as an organization for women’s education in the region
In Afghanistan critical views on women’s education still prevail. Amidst suchviews, CLC is used primarily by women and children. CLC is run in collaboration
between public administration and residents and provides women with education onliteracy and life skills which are close to their needs at a place visible to regional society.
This is the main reason why CLC offers women a place which they can use with a sense ofease and safety. In regions where women’s education is not necessarily guaranteed, CLC
will have its raison d’être.
(2) Measures to make CLC function
As discussed above, the organization and activities of CLC have the following
three features: (1) collaboration between public administration and community, (2)combination of literacy course and life skills courses, and (3) function as a key point inregional society. They are the chief factors that enable CLC to function as a regional
education organization.
(3) Measures to secure the continuity of CLC
The following actions are taken to increase the continuity of the literacy course
and life skills courses which constitute CLS’s core activities.
● The Literacy Department (sub-bureau) pays the salaries for the teachers of theliteracy course.
● Per-diem allowance is not paid to participants in the courses.
● The products (clothes, etc.) which are made in the life skills courses are sold andtheir proceeds are used for CLC management.
● The literacy course is offered free. On the other hand, class fees are charged forthe courses for English, Koran and etc. Revenues from the latter are appropriatedto the former’s expenses.
(4) Flexible and diverse ways of management in response to community needs
Among the three CLC’s under this Project, there are differences in terms of thecommunity’s financial situation, the structure of ethnic groups, and literacy situation.
Hence, the structures of the literacy course and the life skills courses are different. In
order for grassroots Non-Formal Education organizations such as CLC, it is essential tocollect regional needs through CLCMC and assure flexibility and diversity in its course
design and management.
(5) CLC as the hub of satellite Non-Formal Education courses
CLC’s under this Project offer a place for teaching-staff training for the literacy
course in the region or rents equipment and technical aid to life skills classes held in theregion. In Kabul, there are a number of small-scale literacy classes and life skills classes

and CLC plays the function as the hub of such satellite classes.
【Issues toward improvements in the quality of Non-Formal Education in Afghanistan】(6) Quality assurance of Non-Formal Education and the necessity of assessment
At present, a standardized test is not given at the end of a literacy class in
Afghanistan. As a result, literacy education has not been fully assessed, thereby making it
difficult to assure the quality of and pick up problems as to literacy education. A
standardized assessment will be needed in the future.
(7) Improvements in data management of literacy and life skills classes
Statistics on the total monthly number of learners are available at this Project’s
CLC’s. However, no statistics on changes in the number of participants by course havebeen kept. Hence, no data were available on the number of those who have completed
and on the number of dropouts. (According to an analysis made by our Team, thecompletion rate was 37%.) The management of such data and analysis based on the data
will be essential to improve the quality of the literacy course and meet the needs of its
participants.
5-3 Issues to be reviewed by JICA
(1) Sharing with other Projects
CLC builds a mechanism of collaborative activities between public administrationand community, thereby proposing a method to meet the needs for learning skills for life,
including various simple vocational training, in the community. Currently, JICA has been
implementing its Projects in the sectors of rural development, basic vocational training, andimprovements in women’s livelihoods in Afghanistan. We believe that the experiences
obtained in this CLC Project will provide useful information to these Projects. Hence, westrongly recommend that such information be shared among Project experts, JICA
Afghanistan Office and JICA headquarters.
(2) Future development of the CLC Project and sharing information with the National
Federation of UNESCO Association in Japan (NFUAJ)
JICA’s aid to this Project will be brought to an end as of the end of March 2007.
It is planned that NFUAJ, executing agency of this Project, continues its support to CLC
Projects in Afghanistan as its own Project. On the other hand, JICA will execute its LEAF
Project aiming for capacity building of the Literacy Department and implementing literacy
Project by August 2008. Thus, JICA will continue its cooperation for education inAfghanistan with focus on teacher training and literacy education as its priority aid sectors.
Hence, it will be necessary to share information regularly with NFUAJ that continues its
activities in Afghanistan, primarily in Kabul, and also watch carefully the future
development of the CLC Project.