I was trying to get a full understanding of this sentence's structure:
として as "As; In", like in
教師として, "as a teacher", but in this sentence I don't think it has that meaning; I found other meaning (apart from; even; from a viewpoint), none of which seems to apply here.
I'm guessing the
と part is meant to be adverbial, i.e.
遅々 (slow) > 遅々と (slowly), but if that's the case I'm not sure about the
I think I get the meaning (The goverment has plans to build [a school], but since those were proceding slowly, on-site NGOs associations assisted in building it"), but I'm not sure how
として fits in.