Haiti - Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 4605 PROJECT PERFORMANCE AUDIT REPORT HAITI FIRST EDUCATION PROJECT (CREDIT 618-HA) June 30, 1983 Operations Evaluation Department This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  FOR OFFICIAL USE ONLY ACRONYMS CARE - Cooperative for American Relief Everywhere CEF - Centre d'Education Familiale (Center for Family Education) CEP - Certificat d'Etudes Primaires (Certificate of Primary Studies) CIDA - Canadian Interational Development Agency CINEC - Centre Int6gr6 de Nutrition et d'Education Commnunautaire (Integrated Center for Nutrition and Community Education) CONADEP - Conseil National de D6veloppement et de Planification (National Development and Planning Council) CONESCAL - Centre Rggional de Constructions Scolaires pour l'Am6rique Latine et les Caraibes (Regional Center for School Construction for Latin America and the Caribbean) CPR - Centre Pdagogique R6gional (Regional Pedagogical Center) DARNDR - D6partement de I'Agriculture, des Ressources Naturelles et du DMveloppement Rural (Department of Agriculture, Natural Resources and Rural Development) DEN - D6partement de PEducation Nationale (Department of National Education) IBRD - International Bank for Reconstruction & Development IDA - International Development Association IDB - Inter-American Development Bank ILO - International Labor Office INFP - Institut National de Formation Professionnelle (National Institute for Vocational Training) IPN - Institut Pdagogique National (National Pedagogical Institute) ONAAC - Office National d'Alphab6tisation et d'Action Comunautaire (National Literacy and Community Development Office) UNDP - United Nations Development Programme UNESCO - United Nations Educational, Scientific and Cultural Organization his document has a restricted distribution and may be used by recipients only in the performance oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.  PROJECT PLRFORMANCE_AUDIT REPORT hAITI 1IRST EDUCATION PROJECT (CREDIT 618-hA) TABLE OF CONTENTS Page No. Preface ............................................................ i Basic Data Sheet ...................................................... ii Kighlights ......................................................... v PROJECT PERFORMANCE AUDIT MEMORANDUM T. BACKGROUND AND SUKNARY ........................... ....1....... II. PROJECT EXECUTION ............................................ 3 Management Unit ................................................. 3 Sites ........................................................... 4 Basic Plans ..................................................... 4 Civil Works, Construction and Contracts ....................... 4 Project Financing ............................................... 4 Counterpart Funds 5.... 5 Technical Assistance and Fellowships ...................... 6 Furniture and Equipment ......................... ......... 6 Compliance with Covenants .....7.......................... 7 IDA Performance ......7............................... 7 III. OPERATIONAL OUTCOMES AND EDUCATIONAL IMPACT ...8.............8 Primary Schools/Community Centers .......................... 8 Programs of the National Literacy and Community Development Office (ONAAC) ............................... 9 Integrated Centers for Nutrition and Community Education (CINECs) ....................................... 9 IV. TEACHER TRAINING COLLEGES ........................... ..9......9 V. CONCLUSIONS ................................................ 10 Comments from the Borrower: Attachments I-II ........................ 13-18 TABLE OF CONTENTS (cont.) Page No. PROJECT COMPLETION REPORT I. Preface .................................................... 21 II. Introduction ............................................... 22 III. History of the Project .......................................... 23 IV. Project Execution ............................................... 27 V. Project Cost and Financing .................................. 40 VI. Impact of the Project on the Education System ................ 45 VII. Conclusions and Recommendations .............................. 55 VIII. IDA's Conclusions and Recommendations .............. ......... 61 Appendix .......................................................... 65 Annexes 1. Compliance with Credit Conditions (Prepared by IDA) ....... 75 2. List of Project and Non-Project Institutions Visited by IDA's Completion Mission ................................78 3. Date of Completion of Construction Work and Estimated and Actual Costs, by Individual School .................. 79 PROJECT PERFORMANCE AUDIT REPORT IAITI FIRST EDUCATION PROJECT (CREDIT 618-HA) PREFACE This is a Performance Audit Report of the First Education Project in Haiti, for which Credit 618-hA was approved in the amount of US$5 5 million on February 2, 1976. The original closing date (June 30, 190) was postponed twice, the last disbursement was made on February 12, 1962. The audit report comprises (a) a Project Performance Audit Memoran- dum (PPAM) prepared by the Operations Evaluation Department (UED) and (b) a Project Completion Report (PCR) dated June 29, 1982, prepared by the Borrower with considerable input provided by the Latin America and Caribbean kegional Office. The PPAM is based on a study of the PCR and other material in the Association-s files relating to this project, including the Appraisal Report (No. 939a-HA) and the President's Report (No. P-1721-iA) dated February 9, 1976 and February 10, 1976 respectively, the record of the Board discussion of this project on February 24, 1976, and the Credit Agreement dated February 27, 1976. The project experience has been discussed with IDA staff associated with the project. The audit supports the findings of the PCR, draws lessons from some aspects of project implementation, and examines in more detail the Association's performance. As is customary in the preparation of audit reports, copies of the draft audit report were sent to the representatives of the Borrower, this was done on May 12, 1983. Comments received from the Borrower have been incorporated and are annexed to this report.  PROJECT PERFORMANCE AUDIT BASIC DATA SHEET HAITI FIRST EDUCATION PROJECT (CREDIT 618-HA) KEY PROJECT DATA Appraisal Expectation Actual Total Project Cost (US$ million) 6.5 7.8 Overrun (%) - 20 Original Credit Amount (US$ million) 5.5 5.5 Amount disbursed 5.5 5.5 Repaid to )January 31 1983 Outstanding as of ) na - 5.5 Date Physical Components Completed 10/79 06/82/a In Months Since Credit Signature 44 76 /a Proportion Completed by Original Completion Date 100 61 Proportion of Time'Overrun (%) - 73 Institutional Performance - Very'Good Cumulative Estimates and Actual Disbursements (US$ million) FY76 FY77 FY78 FY79 FY80 FY81 FY82 (i) Estimated at Appraisal 0.5 2.55 4.10 5.50 5.50 5.50 5.50 (ii) Actual Disbursement 0.0 0.33 1.24 2.50 3.57 4.85 5.50 (iii) (ii) as % of (i) 0.0 12.9 30.2 47.2 64.9 90.0 100.0 OTHER PROJECT DATA Original Actual or Item Plan Revisions Estimated Actual First Mention in Files 11/26/71 Government's Application 03/73 /b Negotiations 01/15/76 - 01/09/76 Board Approval 02/24/76 Credit Agreement Date 02/27/76 Effectiveness Date 05/20/76 Closing Date 06/30/80 06/30/81, 02/12/82 12/30/81 Borrower Government of Haiti Executing Agency Originally National Development & Planning Council; changed to Ministry of Education in 1979. Follow-on Project Name Second Educ. Project Third Educ. Project Credit Number Credit 770-HA Credit 1305-HA Credit Amount US$10 million US$9 million Credit Agreement Date March 17, 1978 January 14, 1983 /a With the exception of the Teacher Training College of Gonaives and six rural primary schools, not terminated yet. /b Not in the sense of a request document normally produced during the preparation mission, but in the form of preliminary discussions between the Haitian Authorities and the Bank Group.  - iii - MISSION DATA Sent Month/ No. oa No. of Man Date of Mission by Year Days Personsb Weeks/a Report Sector Survey IDB/ 06/74 28 8(C,C,D,D, 32 10/74 draft UNESCO B,B,E,F) Reconnaissance/ Identification IDA 03/75 5 4(B,B,G,H) 4 04/08/75 Preparation IDA 04/75 10 2(A,B) 4 04/25/75 Appraisal IDA 05-06/75 25 5(A,B,B,E, F) 25 02/09/76 Post Appraisal IDA 08/75 5 3(A,B,B) 3 08/29/75 Total 68 Supervision 1 IDA 03/76 5 3(A,B,B) 3 03/14/76 Supervision 2 IDA 08/76 5 1(A) 1 10/08/76 Supervision 3 IDA 11/76 5 2(A,B) 2 01/13/77 Supervision 4 IDA 03/77 5 1(A) 1 04/18/77 Supervision 5 IDA 07/77 3 2(A,B) 1.2 08/16/77 Supervision 6 IDA 02/78 2.5 2(B,C) 1 03/17/78 Supervision 7 IDA 05/78 7 1(A) 1.5 07/12/78 Supervision 8 IDA 10/78 3 1(A) 0.6 12/08/78 Supervision 9 IDA 02/79 2 2(A,B) 0.8 04/06/79 Supervision 10 IDA 05/79 1 1(A) 0.2 06/20/79 Supervision 11 IDA 09/79 5 2(A,B) 2 10/26/79 Supervision 12 IDA 12/79 1 2(A,B) 0.4 02/06/80 Supervision 13 IDA 05/80 1.5 2(A,B) 0.6 06/27/80 Supervision 14 IDA 04/81 2.5 1(A) 0.5 05/05/81 Supervision 15 IDA 01/82 12 1(B) 2.4 02/81 Total 20.2 Completion IDA 03/82 15 3(A,B,D) 6.0 Total 26.2 /a Actual work in the field (spent on the First Project only). /b A = Architect; B = General Educator/Education Planner; C Agricultural Educator/Rural Development Specialist; D = Sociologist; E = Economist; F = Technical Assistance; G = Radio Education; H = Nonformal Educator.  - iv - CURRENCY EXCHANGE RATES Name of Currency Gourdes Year: Exchange Rate: Appraisal Year - 1975 US$1 = 5 Gourdes Intervening Years Average US$1 = 5 Gourdes Completion Year - 1981 US$1 = 5 Gourdes Fiscal Year October 1 - September 30 ALLOCATION OF LOAN PROCEEDS (in US$) Actual Original Revision Disbursement Category Allocation (05/26/81) (02/12/82) I. Civil Works (a) New Rural Schools/Commu- nity Learning Centers/a 1,750,000 2,500,000 2,675,335.02 (b) New Urban Primary Schools/ Community Learning Centers and New Primary Teacher Training Colleges_a 750,000 850,000 881,985.59 (c) Imported Materials and Equipment 300,000 200,000 107,464.47 (d) Local Transportation/ Labor n.a. b 100,000 35,744.44 II. Furniture and Equipment 1,180,000 1,180,000 1,152,761.07 III. Technical Assistance: Specialists' Services and Fellowships 370,000 500,000 479,328.60 IV. Project Administration 150,000 150,000 149,380.91 V. Unallocated 1,000,000 20,000 -- Total 5,500,000 5,500,000 5,500,000.00 /a With the exception of item (c). /b Not applicable.  - v - PROJECT PERFORMANCE AUDIT REPORT HAITI FIRST EDUCATION PROJECT (CREDIT 618-HA) HIGhLIGhTS A credit of US$5.5 million equivalent to assist in financing the First Education Project in Haiti was approved and signed in February 1976. Total project costs were estimated at US$6.5 million. The project covered the building and equipping of 75 institutions, including 3 primary teacher training colleges and 72 primary schools, 65 of which were 4 classroom schools in the rural areas. Of the seven urban primary schools, four had 6 classrooms each and three, 12 classrooms each. Provision was also made for technical assistance and fellowships. The objectives of the project were to develop an education system more suited to the needs and development objectives of Haiti; to increase the education opportunities at primary school level for the most disadvantaged sections of society (urban and rural); to increase the opportu- nities for nonformal education (functional literacy for adult and over-age dropouts of primary school), to implement a new primary school curriculum, and also to improve educational. planning, administration and supervision through achieving better integration and coordination between the activities of various Haitian agencies and units concerned with education and training. The project was designed to support priority areas for the develop- ment of the education system, which faced a series of very serious problems at the time of project generation. It was geographically reduced to two specific areas apart from Port-au-Prince, in order to support ongoing development efforts in departments with strong development potential. The project has been completed substantially1 with three amend- ments during execution: (a) one to allow a redistribution of the proportion to be financed under various categories, to reduce the increasing counterpart funds due to the local procurement of steel and cement (instead of resorting to their initially contemplated import), and (b) two others to authorize the construction of nine primary schools by force account methods instead of the conventional construction method in Bank Group projects (International Com- petitive Bidding). A considerable time overrun was experienced amounting to 32 months. The Credit has been completely disbursed. Total project costs amounted to US$7.8 million, involving a cost overrun of 20%, which was met by the Government. 1/ The Teacher Training College at Gonaives has not yet been completed but is expected to be finished in March 1983. As for the rural primary schools, four have been completed since September 1982, the six remaining are to be ready by March 1983. - vi - The project, by and large, achieved a good measure of success in that, except for the evening functional literacy programs of the National Literacy and Community Development Office (UNAAC), intended for adults and for over-age children, most of the broad objectives were fulfilled and nearly all important covenants implemented tioreover, in a broader context, this project as the first in a series, served as a catalyst and as a stimulus to ongoing reform in the education sector. However, there are some quantitative short- comings in the enrollment pattern as regard the primary schools and the teacher training colleges. Further, several problems were experienced during implementation, such as untimely approval and release of counterpart funds, problems of site acquisition, basic plans for the project schools, cost and supervision of civil works, improper phasing of construction and equipment delivery. Partly due to a short generation phase and consequent lack of opportunity for more in-depth analysis, the difficulty of several aspects of the project was underestimated by the appraisal team. Examples of the difficulties are (i) the problems, especially in the case of a first project, of supervising construction of a large number of scattered institutions (PPAM, para. 11), (ii) the acceptance by teachers and parents of a double-shift system (PPA1i, para. 27), (iii) the arranging of suitable, economic teachers' quarters in rural schools, (iv) the capability of construction firms (PPAM, para. 13). and (v) the potential of Institut Pedagogique National in some aspects1! of curriculum renovation (PCR, para. 6.07). Other matters which were apparently underestimated or inadequately considered were the need for a solid staff development plan, the inability of ONAAC to utilize mobile units equipped with audio-visuals, the problem of finding an economical way to manufacture local furniture, and the need for a teaching material production unit when major curriculum reform is being experimented with and promoted (PPAV, paras. 22, 23 and PCR, para. 6.36). The project achieved a considerable institution building effect by creating, within the Department of Education, a strong implementation capabil- ity, the construction section of the present Project Unit is to be respon- sible, in the future, for all school construction programs of Haiti (PPAh, para. 10). Technical assistance was successful, and almost full use was made of the fellows returning from their training abroad. Experience with this project suggests how important financial incentives are to stimulate the performance of various officials and education administrators. In most cases, additional allowances were provided and these incentives allowed the recruitment, upgrading and orientation of school administrators and teachers for schools with new programs, and stimulated the P.U. staff and those involved in curriculum reform to make every effort in ensuring high quality performance. Also contributing to the successful outcomes was the quality of monitoring and 8uidance provided by IDA staff. 1/ Such as development of new curriculum content and the subsequent produc- tion of teaching/learning materials. - vii - Other points of special interest are: - the difficulty of utilizing external audit of accounts as a tool for monitoring progress (PCR, para. 8.05); - the need for IDA to include an economist on supervision missions in good time, so as to provide corrective measures for the project's financial problems (PPAM, para. 25); - the difficulties of providing technical assistance counterparts in the fields of teacher training and educational administration and generally of improving the teacher training situation, especially with regard to the organizational aspects of practice teaching (PPAM, paras. 19 and 30); - the need for more realistic target dates for covenants with broad implications such as those related to the Borrower's educational reform plans/programs and their review by IDA (PPAM, para. 24); and - the importance of streamlining the arrangements between Borrower and IDA concerning the reimbursement process (PPAM, para. 17). Experience with this project also demonstrated the wisdom of active participation of1 he Borrower in the PCR: the writing of a Borrower-s Completion Report./ seems to have been very beneficial, as is evidenced by the strong awareness of the Haitian Authorities of the shortcomings, problems, and lessons learned during the implementation of the project. 1/ With pertinent advice and guidance ahead of time and during a field mission by IDA.  - 1 - PROJECT PERFORMANCE AUDIT MEMORANDUN HAITI FIRST EDUCATION PROJECT (CREDIT 618-HA) I. BACKGROUND AND SUMMARY 1. After a period of two years of intensive sector work sponsored by the Inter-American Development Bank (IDB) in cooperation with UNESCO, the Bank Group and the Canadian International Development Agency (CIDA), culminating in a report prepared by UNESCO in 1974, a solid basis for project generation was available. This survey highlighted critical shortcomings of the education system, both quantitative and qualitative. The Government priorities, in particular those concerning the reorganization of the Haitian education system (expressed in some detail in the Five-Year Plan for 1976-1981), were presented to IDA for financial support in March 1973, ana stimulated an IDA reconnaissance/identification mission in March 1975. Preparation of the project and appraisal were partially telescoped in May-June 1975, and eventually a credit was negotiated in January 1976. The Agreement was signed in February 1976 and became effective in May 1976. 2. The project, which was to supplement an IDb project with similar objectives, concentrating on other geographical and educational areas, was designed to support priority needs for the development of the haitian education system. Even in the absence of any national education strategy addressing Haiti's fundamental education problems, the Association felt that the preliminary effort made by Government, aimed at improving the system, should be supported. 3. While it provides for correction of inequities of access to basic education and increases the opportunities for nonformal adult education especially in the rural areas, the project also aims at improving the quality and internal efficiency of these levels and types of education/training, inter alia, through a variety of improved teacher education programs and by initiat- ing and coordinating action on modernizing the teaching-learning process in all its aspects. The project also provides assistance to national educa- tion authorities to enhance their management, planning, development and supervision capability, and it establishes the basis for coordinated action, by different government administrative units, to achieve an integrated, national and economic approach to common problems and purposes in this field of education development. 4. Because of existing resource and administration constraints and in order to assure a more meaningful impact (by some degree of concentration) and facilitate a more efficient implementation, the project target areas have been confined mainly to the "Plaine du Nord" and the "Plaine de l-Artibonite" (where substantial development efforts were being undertaken), and to a much lesser degree to Port-au-Prince. -2- 5. The project consisted of: (i) Construction, furnishing and equipping of educational institutions as outlined below: Capacity Boarding Staff Grades or Places Enrollment Places Housing 1. 65 new Rural Basic Schools/Community Learning Centers 1-4 13,000 17,400./a - 65 / 2. 10 new Urban Primary Schools/ Community Learn- ing Centers 1-6 3,000 5,400/a 3. 2 new and expan- sion of 1 Primary Teacher Training College 10-12 720 720. 240 12 Total 16,720 23,520 240 77 /a Allowing for additional enrollment made possible by double shift, but excluding enrollments in functional literacy and other adult programs. /b Excluding enrollment in vocation and special intensive courses. 7c Each unit for 4 teachers. (ii) Equipment to the value of US$0.4 million for the improvement of the ONAAC Literacy and Community programs; (iii) Technical assistance of seven man-years of specialist services and one man-year of fellowships; and (iv) Support for project administration including salaries, equipment and vehicles required for the project implementation unit. 6. During the course of implementation, the project content was revised three times after discussions and approval by the Association, and formal amendments were made to the Credit Agreement. The reasons for these modifica- tions were respectively (i) a change from imported to locally procured con- struction materials (steel and cement) and consequent raising from 70% to 80% the amount to be financed under the categories corresponding to civil works and professional fees, (ii) the use of force account methods to build six schools, and delay in construction, which required an extension of the project-s closing date, and (iii) the use of force account methods for the construction of three other schools. - 3- 7. The project, as mocitiec, has been substantially implemented al- though with some delay (all the project schools were not completed by the extended closing datel). The original closing date was amended twice and the last disbursement was made on February 12, 1982. Total estimated project costs amounted to *7.8 million or 20% above the appraisal estimate. The cost overrun was borne by the Government with the help of a Venezuelan Fund and IDE. Although the assessment of the achievements of the project in the PCR focusses mainly on the hardware (and field visits were restricted to a rather small sample of the project institutions), it is evident that much was achieved with regard to software targets. Several qualitative objectives were also realized. II. PROJECT EXECUTION Management Unit 8. On the whole, the project, though complex to manage, was reasonably well executed by an efficient Project Unit. Some of the difficulties experi- enced and factors associated with them, such as site acquisition, supervision of civil works and delivery of furniture and equipment, are examined in more detail in this section. 9. The initial placement of the Project Unit under the National Council for Development and Planning (CONADEP) contributed significantly to its outstanding achievements.2/ The caliber and leadership of its managers, the numbers, quality and variety of senior staff, including two educators, and their relative continuity, as well as the availability of support personnel and education liaison officers appointed by the two major ministries involved, assisted considerably in the creation of an efficient team. The physical location of the Project Unit within the Department of National Education (DEN) and the support received during implementation from the Ministers of Finance, Education and Agriculture complete the picture of a successful enterprise. A considerable institution building effect was achieved, in that the Project Unit is currently executing the Second Education Project and the Government has indicated its intention to convert the construction section of the unit into a separate Directorate within DEN, with responsibility for all school construction programs in Haiti. 10. Notwithstanding the Project Unit's commendable performance, a number of problems were encountered during implementation partly because of the size of the project (the first in the sector) and the dispersion of rural schools 1/ The Project Unit took over the construction of 21 schools left incomplete by the contractors (19 primary schools and two teacher training colleges) in an endeavor to terminate civil works as quickly as possible. 2/ From 1979 onwards, when CONADEP became the Ministry of Planning, the Project Unit came under the Department of National Education. -4- over difficult terrain in the hinterland. In addition, difficulties were experienced with sites, the basic plans for the project schools, the construc- tion, cost and supervision of civil works. Sites 11. Acquisition of sites or their accessibility were factors which delayed and complicated matters. Already, at negotiation stage, IDA was aware of potential site acquisition problems, and it seems that the large number of project schools and the topography of Haiti's rural land should have induced the appraisal team to be less optimistic in forecasting the implementation schedule of the project. Basic Plans 12. Basic plans for primary schools were not adapted to local conditions because they did not sufficiently utilize local materials and, as they in- cluded provision for a workshop, turned out to be costly. Perhaps more attention should have been given to this issue at project generation stage. Civil Works, Construction and Contracts 13. In relation to contract awards and construction proper, it appears that an inexperienced Project Unit underestimated the time required for processing the contracts and their payment, and this created difficulties with contractors and thus produced delays in implementation (PCR, para. 4.25). The buildings were all completed with a time overrun of about 2-1/2 years, and the difficulties of physical implementation were underestimated at appraisal. The capability of construction firms had been overestimated, in particular in relation to the construction of rural schools. When the situation worsened because of shortage of counterpart funds, the Borrower resolved the problem by resorting to the force account methods. By that time (1979) the team of architect-engineers of the Project Unit was sufficiently strengthened for this purpose. Two teacher-training colleges had to be built this way as well as 28 other project schools, among which were seven rural schools. Eventually, only one teacher-training college was completed and has been operational since November 1980 in Port-au-Prince. The college of Cap-haitien was finished in September 1982 and the College at Gonaives was expected to be completed in March 1983. Cost and supervision of civil works have been a constant matter of concern. The lessons learned by the Borrower are that in the case of small size, remotely located rural primary schools, the entire construction process would be improved and cost reduced (i) by bulk purchasing of materials and certain components, (ii) by providing warehousing facilities for speedy distribution of materials and components to the building sites, and (iii) by having specialized architects and engineers to manage primary schools civil works. Project Financing 14. Overall project cost (US$7.8 million) exceeded the appraisal estimate by nearly 20%. The reasons given for this overrun are: (i) the exclusion, in the appraisal estimates, of a good proportion of operational - 5 - expenditures, and (ii) the considerable time overrun and the parallel escala- tion of prices which brought about a cost overrun of nearly US$1 million for construction and architects' fees. 15. The unit costs comparison for building, furniture and equipment between the rural and urban primary schools of different sizes shows that the 12-class urban schools is the most interesting proposition, whereas, under- standably, the four-class rural schools are a costly choice (for which the underestimate at appraisal of the costs of buildings, furniture and equipment was approximately 50% in each case). Although by far the most costly institu- tions, the teacher-training colleges have a number of important shortcomings which could probably have been avoided by closer monitoring and planning. These shortcomings relate to (i) the non-inclusion, in the contract, of required works (fencing, subsidiary building, separate kitchen blocks), (ii) the absence of additional educational equipment deemed necessary for the colleges, and (iii) required furniture still unavailable for some parts of the colleges. The unit costs for furniture and equipment are low in comparison with other countries in the region but are somewhat high by Haitian stan- dards, and this is particularly so with regard to the equipment component. Counterpart Funds 16. The counterpart funds necessary to implement this project were considerably underestimated at appraisal, the increase of the real cost being 128% over the original estimate. The Project Unit reacted to this particular problem rather late because of initial optimistically low prices in the bids on civil engineering. The lesson was learned, and IDA proposes to reduce the percentage of counterpart funding to 10%!1 in the third project. 17. The disbursement rate was much slower than contemplated at project generation stage. After a very slow start in FY1979, less than 50% of the contemplated disbursement had taken place, whereas in 1980, at the time of the originally set closing date, the proportion was around two-thirds. It is felt both by the Borrower and by IDA that it is important for future projects to open a special account at the Central Bank with the proceeds of the credit/loan2/ and to streamline Haitian procedures for approving con- tracts and reimbursement applications (PCR, paras. 5.12 and 8.06). 18. The funds provided for operating the project schools have been adequate so far, although on the low side. It appears that, in the near future, the Government will have to meet higher operating costs, in relation 1/ In the Appraisal Report of Education I, counterpart funding was estimated at 15.3% of the expected project cost, but the costs amounted in reality to 29.3% of the final project costs. 2/ The lesson was well taken and the Credit Agreement for the Second Education Project was amended to include this concept; for the Third Project, the measure advocated was built-in from the start. - 6 - both to ieachers' salaries (they are likely to increase as a result of the work done in the framework of the project on the status and conditions of teachers) and to consumables and other items required to maximize the use of the facilities created within the project. Technical Assistance and Fellowships 19. The specialist services, recruited by contracts mainly with UNESCO and also with ILO, were, on the whole, very satisfactory and positive. Counterparts were available in most of the fields except in teacher training and education administration. Some delays in recruitment and appointment occurred but technical assistance remained within the cost limits and made a substantial contribution to the successful software achievements of the project and to the generation of follow-up projects in Haiti. 20. The eight fellowships were considered successful and, except for one, all fellows returned to activities relevant to their training. 21. Technical assistance funds served also for a variety of activities related to the project (expenses and allowances for mainly local personnel and CONESCAL) and were aimed at maximizing the implementation process. This flexibility turned out to be beneficial. Furniture and Equipment 22. Equipment and furniture, amounting to 21.5% and 14.5% respectively of the project cost, as estimated at appraisal, were of the required standard, and the furniture represents a major improvement over the existing situa- tion in most schools. However, a few lessons were learned through the proj- ect. For the furniture, it appears useful, in the future, to consider using stronger boards for tables and benches; they should be easily repairable and the use of metal parts would probably allow savings. Furthermore, it is felt that furniture design should allow easy manufacture, storage and low cost transportation: production should be done - in plant - of parts of furniture, packaged for final assembly in each school with tools normally available in the area and possible participation from the community and the teachers. 23. As for the equipment, although by and large properly chosen, some problems were noted with gas stoves at teacher training colleges; delays occurred in providing library books and more generally in providing the full complement of equipment to the project schools. As in some other Bank- supported projects, the proper phasing of constructing and equipping the project institution could not be realized because of excessive delays in construction. Storage problems were encountered and prevented proper control of items supplied. The equipment provided to ONAAC was modified compared to the appraisal estimate: the purchase of eight mobile unit equipped with audio-visual materials and other teaching aids was dropped,.1' and the flex- ibility shown is to the credit of the Association; the initially contem- plated number of motor bicycles was greatly increased and various items of 1/ It appears that ONAAC capability to use them rationally had been over- estimated at project generation stage. equipment such as audio visual aids, radio sets, duplicating machines and printing materials were provided to strengthen the supervising and community action counseling services of ONAAC. Compliance with Covenants 24. Of the 30 credit conditions agreed with the Borrower, 27 were met, although several with some delay, especially those related to (i) site selec- tion and acquisition, (ii) employment of technical assistance specialists and (iii) preparation of a study on terms and conditions of service, bonding and appointment procedures of primary school teachers. As for the covenants related to the borrower's comprehensive education plan and the review, jointly with IDA, of the Borrower-s educational reform plans and programs, there had been a considerable delay in relation to the target date (June 30, 1977) set at the Credit Agreement stage. however, these plans and programs were reviewed and IDA was kept informed through the quarterly Progress keports of the Project Unit. As for the covenant requesting the review with IDA of the Borrower-s needs for rural primary teacher training programs, the matter was reviewed within the Second Education Project, which takes care of the expan- sion of such programs. IDA Performance 2r. At the generation/design stage, there was very little continuity of staff between the various field missions, despite the fact that they were concentrated in time.!l Extensive use was made of consultants in prepar- ation/appraisal and, in general, more attention could have been paid by the Association2/ to the proficiency in French on the part of both staff and consultants.3/ At the implementation stage adequate continuity of staff was maintained. The project was frequently supervised, although the duration of the field missions was reduced in time (average about four days). An architect (always the same one) went 13 times, educators went 9 times. Both the monitoring and the technical assistance/guidance function were well 1/ In particular, the time from identification of project to beginning of appraisal (two months) is very short compared to the average of 26 Bank-assisted projects (over 13 months). 2/ The Region-s view is that the Bank/IDA identification/preparation mis- sions dealt with a small Haitian team who were all fluent in English and that, as far as the appraisal mission was concerned, the language skills were adequate. The audit maintains that more attention could have been given to the proticiency of mission members in French. 3/ The Haitian authorities specified proficiency in French for expatriate specialists involved with the project, as had been the case with the major sector study undertaken by a large UNESCO team. performed by IDA staff, whether from headquarters or on mission in the field. IDA showed considerable flexibility,1/ in relation to bidding procedures or about the construction method, and was aware of training needs of Project Unit staff and of the need to finance "key groups"2/ in the country. It was the Borrower's feeling that the contribution of supervision missions towards solving the financing problems, which gave rise to considerable delays in the progress of civil works, was minimal. This raises the question of the need to include an economist or financial analyst on supervision missions where budgetary and financial problems begin to appear.3/ III. OPERATIONAL OUTCOMES AND EDUCATIONAL IMPACT Primary Schools/Community Centers 26. The use of the primary schools is, to some extent, unsatisfactory: in the case of rural schools, social pressure has led to overcrowded project facilities. As for the urban schools, compared to the target enrollment in the framework of double-shifting, their use-factor is insufficient. A major issue is the resistance of teachers and parents to the use of the shift system in the rural areas. This was apparently not anticipated at appraisal. A policy in favor of this system and on the related matter of salary supplements for teachers functioning both mornings and evenings would help the final enrollments of the schools match the appraisal expectations. A very reas- suring situation prevails in relation to the project institutions teachers, whose percentage of "qualification"A' (about 80%) is higher than the appraisal target. Also, a commendable dynamism in curriculum reform (the latter drawn up very largely in Creole), and development of teaching materials5/ is evident as also is experimentation in 'the classrooms since October 1978. These latter two activities are developed in conjunction with the Second Education Project (Credit 770-HA). 1/ IDA allowed also temporary inputs of additional manpower for the Project Unit for expediting site selection. 2/ Such as Curriculum Committee and Consultative Committee members, rural inspectors, participants in orientation seminars and various workshops. 3/ The Region recommends that all future supervision missions, regardless of the composition of the mission, give high priority to financial aspects so that constant monitoring of the financial situation prevents crises from continuing such as occurred in the First Project. 4/ This "theoretical" qualification is systematically upgraded by refresher courses, in order to enable the bearers to match the new curriculum requirements. The corresponding percentage average for all primary schools is 27%, whereas for the public sector alone, it would be 40%. 5/ In relation to this, one should underline both the leadership of the Project Unit, which promoted the funding of these activities against the proceeds of the project, and the flexibility of IDA to agree. -9- Programs of the National Literacy and Community Development Office (ONAAC) 27. It is not possible to assess in depth at present the contribu- tion of the project to the ONAAC activities in Haiti, but on the face of it, this component of the project does not appear to have been successful: the experiment to combine in a primary school the regular program with non-formal adult education courses has not gone well. A literacy and family education program was supported by the project and mainly attended by women. The enrollments in the centers at completed project schools in 1981/82 were considerably lower than expected at appraisal: about 50% for the rural areas but less than 15% of the estimates in the urban centers. The Borrower is aware of the severe problems plaguing the ONAAC programs and is examining them in more detail. This evaluation of the programs/activities of ONAAC should have been promoted earlier and indicates a certain weakness in the monitoring function. Integrated Centers for Nutrition and Community Education (CINECs) 28. The contribution of the project to the devel pment of the new program represented by the CINECs was highly positive.1, The CINECs are located on the same premises as the project schools. The staff of the centers share the accommodation provided by the project and benefit from seminars organized and financed by the project..2/ A spill-over effect of the activi- ties of the centers has been the recognition by Ministry of Education of pre-school as part of the formal education system. IV. TEACHER TRAINING COLLEGES 29. The enrollment figures are well below appraisal estimates, par- tially because of the lack of completed facilities in the case of two of the colleges (in Gonaives and Cap-Haitien) but the shortfall is mainly attributed to the difficulty of recruiting candidates with sufficiently high academic qualifications. The latter situation is expected to improve with the enforce- ment of the provision of the project-supported new status for teachers.i/ The revision of the old teacher training curriculum (to put it in line with the revised primary education curriculum) proved somewhat disappointing. Moreover, the use of the practical facilities (at present only available in 1/ CINECs are financed by the CARE Foundation. 2/ Schools constructed under the Second Project also have CINECs constructed by CARE. 3/ Discussed and amended within the framework of the Second Education Project. - 10 - Port-Au-Prince) of the colleges is insufficient, due to inappropriate oper- ating budget and lack of instructors in practical subjects. The library is also inadequate..1 As for the faculty of the colleges, althoulh aca- demically qualified, their professional training needs upgrading. The schools are not yet functionally linked to their respective college and steps are now being taken to formalize the use of these primary schools for the purpose of practice teaching. 30. At the present time, the project should, according to the appraisal forecasts, contribute very considerably (about 43%) towards the total output of primary teachers expected within the Second Five-Year Plan (1976-1981). However, for the period covered by the Third Five-Year Plan (1982-1987), the needs will increase considerably. The DEN officials are aware (PCR, para. 6.27) of the urgency for the Government of Haiti to examine the teacher training problems in depth. As for the problems of a pedagogical nature related to the teacher training system, since the beginning of 1982 steps have been taken to ameliorate the situation. A curriculum review committee was established, and the Third Project is financing the extension of the contract of the teacher training expert for an additional six months to work speci- fically on the issue of curriculum development. V. CONCLUSIONS 31. Although the project is not yet entirely completed physically, it was reasonably successful in the sense that most of the objectives were fulfilled (some to a certain extent only) and that, mainly on the software side, the project served as a catalyst and gave stimulus to a reform of the Haitian education system. 32. The most important achievements of the First Education Project in Haiti were of an institutional nature: 1/ It is learned from the Region that books have now arrived for the teacher training colleges. 2/ The teacher training expert financed under the Second Project has drawn up a comprehensive five-year training program for improvement of faculty. OAS funding was secured for the first year and several national seminars for directors and faculty have been held or will be held during this academic year (1982-83). In addition, the Third Project finances a team of Haitian experts who visit teacher training colleges and conduct faculty training seminars. - 11 - (a) A series of laws (Unification Law of 1978,1/ Organic Law of 1979,2 Education Law of 19823/) dealt with the restructuring of the education system, the reorganization and expansion of the admini- strative services and the institutionalization of new educational services in the Department of Education (DEN). These developments, as well as the study on the improvement of teachers- conditions (also supported by the project), were the prerequisites for the unification of the urban and rural education systems, the expansion of education (especially in the rural areas) and the success of the Education Reform. (b) The project unit is a strong body within DEN and its construction section will be called upon to be responsible for all school construction programs in the country. 33. As far as the physical completion and use of the project institu- tions are concerned, there have been a variety of problems preventing the project from reaching a fully satisfactory operational status. However, some of the problems, such as the issue of double-shift in both urban and rural areas are to be tackled in the future when the Government is expected to clarify its policy on the matter. Others, such as the issue of the pro- fessionalization of teachers and teachers' educators, are actively under consideration. The problem of terminating the third teacher training college at Gonaives is in the process of being solved. The contribution of the colleges, at present underenrolled, to the growing future needs of teachers will depend on the priorities set by'Government, on the quantitative expansion of teacher training and on the salaries to be given to teachers. The contri- bution of the project to the programs of the Integrated Centers for Nutrition and Community Education (CINECs) has been very positive whereas the operation of the underutilized primary schools facilities for the adult programs and the over-aged students of the National Literacy and Community Development Office (ONAAC) has not been altogether successful: an evaluation is expected by the Haitian authorities. 34. A number of lessons were learned during the implementation of the project, some of which came perhaps more sharply in the light at completion stage, wherein the Haitian officials were thoroughly involved. Several were already put to use for the second and third projects, such as the necessity of resident supervisors for civil works in the rural areas, the increase of IDA's participation of local cost financing, and the establishment of a special account at the Haitian Central Bank with the proceeds of the Credits, in order to streamline the reimbursement applications. 1/ This Law was a special covenant of the Second Project. 2/ This Law was based on studies carried out by technical assistance provided under the First Project. 3/ This Law was a logical outcome of the reform process in the sector, and it formed the basis for recommending the Third Project. - 12 - 35. Technical assistance and fellowship programs were of above average usefulness and IDA's monitoring and guidance were on the whole efficient and helpful. 36. One overall remark should be made here: most of the hardware and related organizational problems were probably due to the size of this first project, with a large number of dispersed institutions in a very difficult hinterland setting. 37. This first project was followed up by a second one, consolidating the three major aspects in which the first project had gained some momentum: curriculum development, teacher training, and productio9 of teaching mater- ials. The activities supported by the Second ProjectI are expected to be strengthened further by the Third Project..Y The problem of higher level staff such as teacher educators is only beginning to be addressed and much effort is still needed in this important area. 1/ The staff training component of the Second Project is now implemented and addresses the needs of school principals and teachers. 2/ This project's training component is quite considerable and includes schemes for school principals, teachers and inspectors/pedagogical counselors. - 13 - ATTACHMENT I COMMENTS FROM THE BORROWER (1) June 10, 1983 (page 1 of 4) E-1128/83 French (Haiti) OED JCB:pa EDUCATION PROJECTS Government of Haiti-World Bank No. PE1 - 3 Ref. Credit 618-HA Mr. Shiv S. Kapur Port-au-Prince, June 3, 1983 Director, OED World Bank Washington, D.C. Dear Sir: I read with interest the Project Performance Audit Report on the First Education Project (Credit 618-HA). With respect to the PPAM, which seems completely objective, I found just a few typing errors and two corrections to be made concerning the number of classrooms built and the acquisition of lands which have not in some cases been purchased. With respect to the Completion Report, it seems that a number of corrections need to be made and the paragraphs concerning furniture (page 9) and the application schools (page 17 and 36) should be reworded. Very truly yours, /s/ Roger Delmas Director - 14 - ATTACHMENT I (page 2 of 4) PROJECT PERFORMANCE AUDIT MEMORANDUM Page vi - I (a): "centres d'education communautaire" ("community (English iv) education centers" instead of "centres d'6tudes communautaires" ("community learning centers") Page vii - 1st para: "seven primary urban schools, including three (English v) with 12 classrooms" instead of "four 12-classroom primary urban schools" Page vii - "coordination" without an "s"* Page viii - 2nd para: "the education system" instead of "the Haitian (English v) education system" Page ix - 2nd para: in "problems of site acquisition and costs", (English vi) omit "and costs" Page 1 - Para 4 "Plaine de l'Artibonite" instead of "Plaine d'Artibonite"* Page 5 - Para 8: "1'acquisition de terrains" instead of "l'achat de terrains"* Page 5 - Footnote 1/: "la Secretairerie d'Etat du Plan" instead (English 3) of "le Secretariat"*. Also change "Department of Education" to "Department of National Education". Page 7 - Para 11: "1'acquisition des terrains" instead of (English 4) "1'achat des terrains"*. - Omit "and in certain cases their cost" Page 13 - Para 23: in "to strengthen the supervising and (English 7) counseling services of ONAAC" include the words "community action" before "counseling" Page 14 - Footnote 2/: "une petite equipe d'HaYtiens" instead of "une petite equipe de HaYtiens"* * Translator's Note: All corrections followed by an asterisk relate to the French text only. - 15 - ATTACHMENT I (page 3 of 4) PROJECT COMPLETION REPORT Page 9 - The last sentence of the "Overview" section should read: (English27) "Except for the furniture order, one third of which has never been delivered by the firm despite constant reminders from the Project Unit, technical assistance and the contracts for equipment gave rise to only moderate problems." Page 11 - 4.09 (c): "laboratories" instead of "central laboratories" (English29) Page 13 - 4.20: in "entre les trois firmes restantes rencontrerent"* insert "gui" before "rencontrerent"* - in "a 6t6 depasse dans tous les cas qu'aucun" insert "sans" before "qu'aucun"* Page 15 - 4.26: In "Cependant, au debut, de l'interpretation initiale" omit "de"*. Page 17 - 4.33: The last sentence should read: "No application (English 34) school was planned for this college, given that the Vaudreuil region is well served by a number of primary schools. DEN is taking steps for the formal use of these primary schools as application schools. However, on the initiative of the teacher training coordinators and with IDA's approval, one of the primary schools included in the Second Project will be shifted to serve as an application school for this teacher training college." - Footnote 3/ should read: "The school is now expected to be completed by December 31, 1983. Page 19 - 4.42 "perturbe" instead of "pertube"* Page 20 - Footnote 1/ should read: "This equipment was used by the (English 36) supervising and community action counseling services of ONAAC". Page 30 - Under "No. of classrooms" replace 54 by 60 and 318 by 324 (English 45) Page 31 - 6.06: "la Carte Scolaire" instead of "le Cadre Scolaire"* Page 34 - 6.18: "emargent" instead of "emergent"* Page 35 - 6.25 in "No such school is planned" replace "is" by "was" (English 50) - 16 - ATTACHMENT I (page 4 of 4) Page 36 - First paragraph to be added (sic - Translator)**: (English 50) However, on the initiative of the teacher training coordinators and with IDA's approval, one of the primary schools included in the Second Project will be shifted to serve as an application school for this teacher training college". Page 36 - 6.29 -in "sont & pied d'oeuvre puis fevrier 1982" replace "puis" by "depuis?"* Page 42 - 7.06 (sic - The section referred to is actually page 46, section 7.27 - Translator). In "dans le cadre du Projet No. 3 qui est oppos6" replace "oppose" by "propose"* Page 48 - 8.03 "effectue" instead of "effecute"* Page 49 - 8.07: - "du fait des resistances que suscite" instead of "du fait des resistances qui suscitent"* - In "1'enseignement du matin" replace "du" by "le"* Page 54 - Supervision - In "ce pour les raisons suivants" replace "suivants" by "suivantes"* Page 56 - "Concerne" instead of "conserne", and "hausse des coits" instead of "hause"* Page 57 - Replace "Project" by "Projet"* (English 68) - In the table: "Primary rural schools (4 classrooms)" instead of "3 classrooms" Page 58 - 1st para.: In "nouveau besoins", replace "nouveau" by nouveaux"* - In "on en a utilis6 que 58.5%" replace "en" by "n'en"* Page 60 - 1st para: "remunerations" instead of "renumerations"* Annex 1 - 3.06: New French version: "les instructeurs de l'IPN, du DEN et du DARNDR" New English version: "PIN, DEN and DARNDR teacher trainers" Annex 1 - 3.06(c): New French version "dans les ecoles du DEN et du DARNDR" New English version: "in both DEN and DARNDR schools". **Translators Note: It seems from the context that what is intended is "Add the following to the first paragraph, i.e. para. 6.25). - 17 - COMMENTS FROM THE BORROWER (2) ATTACHMENT II E-1177/83 (Page 1 of 2) June 23, 1983 French (Haiti) OED ENMcM:law Republic of Haiti Department of National Education State Secretariat of National Education No. B-4:2600 Port-au-Prince, June 7, 1983 Mr. Shiv S. Kapur Director Operations Evaluation Department IDA (World Bank) 1818 H Street, N.W. Washington, D.C. 20433 Subject: Project Performance Audit Report on the First Education Project (Credit 618-HA) Dear Sir: The State Secretariat of National Education of the Republic of Haiti has the honor to acknowledge receipt of the Project Performance Audit Report for the First Education Project (Credit 618-HA) comprising (a) the memorandum drawn up by the Operations Evaluation Department, and (b) the Project Completion Report dated June 29, 1982 submitted by Government-authorized authorities. Examination of the Memorandum gave us -the opportunity to establish the frankness with which sometimes unforeseeable problems were identified and solutions put forward with a view to ensuring the ultimate success of the venture. We also wish to corroborate the reference to the spirit of cooperation between the staff of both the Association and the Haitian authorities. This cooperation made it possible, throughout the implementation of the project, to effect realistic revisions to certain measures that had been proposed or even introduced in somewhat overhasty fashion in what was an entirely new experiment for the Haitian technicians. I wish to express my satisfaction at the recognition of the ultimate success of this project 618-HA. The project's objectives were achieved, des,.te delays which have since served as a lesson to everyone, and despite certain shortcomings that gradually became apparent for which no absolute blame can be assigned to either of the parties exclusively. I fully endorse the statement made on page 11 (para. 34) of the Memorandum: "A number of lessons were learned during the implementation of the project .... Several were already put to use for the second and third projects ... - 18 - ATTACHMENT II (Page 2 of 2) As regards the Project Completion Report produced largely by the Haitian authorities, I shall limit my comments principally to the reservation expressed by the Association with regard to point 2.04 of the Introduction. The gradual corrections for satisfactory implementation of the project were made to the extent possible, and there can be no question as to the impact of the project on the qualitative and quantitative improvement of the formal education system. Consequently, the recommendations that form the core of the report in general are welcome for the present and future of the ever more fruitful cooperation between the Government of the Republic of Haiti and the International Development Association. I wish to thank IDA for assessing at 27 out of 30 the number of covenants complied with. I feel that the Haitian Nation has in this way furnished evidence that its membership of the Association is fully justified, and it also strengthens my conviction that international solidarity will continue to be directed toward my country. In conclusion, I have the honor, on behalf of the State Secretariat of National Education, to accept the Memorandum as it stands and to confirm the Project Completion Report. Please accept the assurances of my highest consideration. (L.S.) /s/ Franck E. Saint Victor State Secretary - 19 - HAITI FIRST EDUCATION PROJECT (CREDIT 618-HA) PROJECT COMLETION REPORT Revised Version June 29, 1982 Latin America and the Caribbean Regional Office Projects Department  - 21 - I. PREFACE 1.01 A Credit Agreement (618-HA) was signed in February 1976 with the Government of Haiti to finance a first education project. The Credit provided US$5.5 million to assist the Borrower in (a) the expansion and reform of basic education, including functional literacy and community development activities; (b) related expansion and reform of primary teacher training; and (c) the promotion of institutional arrangements supporting a coordinated, economic and effective approach to the country's educational problems. Specifically, the project provided for: construction, furnishing and equipping of 78 educational institutions; (b) equipment for literacy and community development programs; and (c) seven staff-years of technical assistance and one staff-year of fellowships. 1.02 The project was implemented with some modifications, which included reallocation of credit proceeds to meet civil works costs overruns (February 1980) and construction of nine basic schools located in remote and not easily accessible areas under direct Project Unit supervision (June and November 1981). Almost all the credit conditions were adequately met (Annex 1). The project was completed with a 30% time overrun and a 20% cost overrun. The credit proceeds were fully disbursed within one month after the Closing Date (December 31, 1981). 1.03 A Project Completion Report was prepared by the Borrower, with technical assistance from IDA. The IDA completion mission, which visited Haiti during March 1982 for a total of 30 staff-days, was given a first draft of the PCR on its arrival. While the mission was in the field, the report was revised several times, and the final version of the report was reviewed by high officials in the Department of Education. The process of intense IDA assistance to local counterparts for the preparation of the report proved valuable to the Borrower. It assisted the Borrower in surfacing the issues and in evaluating the implementation process. The Borrower's report is presented in Chapters II-VII. It covers all the salient features of the project's implementation and is considered generally satisfactory. 1.04 The IDA mission reviewed the Borrower's Completion Report by (a) studying all the relevant .L-_ta and documents available in the Bank; (b) visiting 21 project institutions and 6 nonproject primary schools (Annex 2); and (c) interviewing the principals of the schools visited and some key officials of the Department of National Education. The mission's contribution to the report is identified by: (a) footnotes in the text and notes provided in the Appendix, giving additional information and pointing out some differ- ences from the Borrower's analysis and interpretation; and (b) a concluding Chapter (VIII) highlights the most important experiences and lessons to be derived from this project, and areas where further action is recommended. 1.05 The only difference the IDA mission has with the Borrower's report concerns the financing of operational expenditures by the project. The Borrower recommends including these expenditures in the project, while IDA only recommends including some operational expenditures directly related to the investments in the project. - 22 - II. INTRODUCTION 2.01 In order to prepare, in conjunction with the Direction des Projets d'Education (Education Projects Directorate), the final report on the First Education Project financed with the aid of Credit 618-HA granted to the Haitian Government by the International Development Association (IDA), the Direction Generale de 1'Education Nationale (Directorate General of Education) appointed a committee made up of educators, planners and administrators. 2.02 In accordance with the guidelines provided by two IDA consultants, the object of this report was to: (a) compare the results obtained to date with the objectives laid down in the project appraisal documents and the Credit Agreement; (b) examine the implications of the project as they can be identified at present, and (c) highlight lessons to be learned and make recommendations for future projects, particularly for a proposed Third Education Project. 2.03 The strategy employed was as follows: (a) collection of statistical data and information from the Directorates of Planning and Primary Education, the school inspectorates, the National Pedagogical Institute, etc.; (b) study of the Five-Year Plans for the periods 1976-1981 and 1981-1986, together with documents relating to the Education Sector Development Plan and the education policy envisaged under the Education Reform; (c) examination of the files of the Project Unit, including reference documents and reports dealing with project execution; and (d) visit to teaching institutions constructed under the Project, viz.: (i) two urban primary schools; (ii) eight rural primary schools, and (iii) three primary teacher training colleges. 2.04 The conclusions and recommendations resulting from the committee's observations are presented in the various chapters below. They must, however, be treated with some reserve, as it was not possible to visit a larger number of schools, and also because it was impossible to obtain reliable data on student performance on the basis of an objective assessment. - 23 - III. HISTORY OF THE PROJECT Situation of the Education Sector 3.01 From June 1972 to June 1974, the Inter-American Development Bank, in cooperation with UNESCO and other agencies such as IBRD, CIDA and IDA, undertook a number of missions to Haiti to study the country's education system. The information gathered led to conclusions and recommendations which were compiled in a report prepared by UNESCO in 1974 at the request of the Haitian Government. This report presented a diagnostic survey highlighting the shortcomings, both quantitative and qualitative, of the education system. 3.02 The crisis situation identified in the report was described in the following terms: (a) Very low enrollments, viz. 26% in the countryside, where 80% of the population live, with only about 3% of the children who enter school reaching the final class of the primary cycle (7 years). In urban areas, where the situation seemed to be less disastrous, the enrollment rate was 89% with a completion rate of 48%; (b) An elitist system of education with overloaded programs geared toward passing selective examinations, with the unfortunate consequence of eliminating a large percentage of the children from the system and their rapid reversion to illiteracy; (c) Insufficient number of schools (requiring students to walk very long distances) where they were taught under unsatisfactory conditions, not enough classrooms, furniture or teaching materials and overcrowded classes accommodated in ordinary dwellings: - private sector: 61 students per classroom; - public sector: 94 students per classroom; (d) Shortage of trained teaching personnel (30%) and of suitable teaching materials adapted to the Haitian context, together with the use of a language (French) which is not the language spoken by the Haitian people, giving rise to problems of communication in the pedagogical context for both the student and the teacher; (e) A career structure offering very little incentive to teachers, and negatively influencing their attitude to their work; (f) Primary education divided in two systems--urban (6 years) and rural (7 years)--each with its own administrative arrange- ments, objectives and structure offering only one possibility for a minute proportion of the students to proceed to secondary education after obtaining their certificate of primary studies, while leaving the vast majority of the children without any basic education of use to them in their practical life; (g) Administrative arrangements lacking in coordination, management, control mechanisms and guidance of the education system. - 24- 3.03 In view of all these shortcomings, the Government decided to reorganize the education system and establish a new structure to be imple- mented gradually, starting at the primary level, as set forth in the Five-Year Plan for 1976-1981. The Government's education policy was based on the following priority objectives: (a) Extend primary education to a larger number of children of school age, without discrimination of any kind; (b) Include in the system children who have already passed school age; (c) Prepare a system of secondary education adapted to Haitian realities and open to all; (d) Make technical and vocational education the essential pillars of the education system; (e) Develop a Haitian university open to research and the training of technical and scientific manpower; (f) Assign an essential place to non-formal education; (g) Improve the efficiency of all levels of the school system by adapting programs to the realities of life in Haiti and making more rational use of available physical and human resources; (h) Increase the number of trained teachers and create favorable working conditions for the teaching profession; (i) Expand educational facilities add make arrangements for their maintenance and renewal; (j) Unify the school system while permitting each area to retain its specific features. Formulation of the Project 3.04 The Government's priorities, as expressed in a request to IDA for financial support for implementation of a revised education program, were accepted for consideration. 1/ In March 1975, an IDA reconnaissance mission identified the components of a project that included basic education and the training of primary school teachers, together with a vocational and technical training element and science laboratories. The above project, appraised in June 1975, was cut back to a less ambitious size. Given the financial constraints, a decision was made to focus attention on basic education and teacher training. A negotiating mission went to Washington in January 1976. The credit agreement was signed in February 1976 and the project became effective in May 1976. 2/ 1/ By IDA. 2/ The project generation process took only about 15 months (March 1975- May 1976) because (a) the project was preceded by two years of sector work done mostly by UNESCO; (b) as a pilot project, it was small in size and had few components. - 25 - 3.05 The objectives of the project were to: (a) Develop an education sysiem better adapted to the possibilities and realities of life in Haiti, i.e., more suited to the country's needs and the development objectives established by the Government; (b) Offer increased access to first-cycle basic education for the most disadvantaged sections of society, particularly low-income groups living in rural communities and urban areas, and increase the availability of non-formal education by providing technical and financial support to ONAAC in the area of functional literacy for adults and overage children who had dropped out of the primary cycle too early; (c) Improve the quality and effectiveness of programs for the training of primary school teachers and modernize the learning and teaching process in all respects by implementing a new curriculum to be developed by the National Pedagogical Institute with the assistance of other international agencies; (d) Assist Government officials in improving procedures for planning, administration and supervision of the education system through better integrated and more rational activities by the various authorities concerned with education: the Department of Education (DEN), the Department of Agriculture, Natural Resources and Rural Development (DARNDR), and the National Literacy and Community Development Office (ONAAC). Description of the Project 3.06 In order to achieve the objectives listed above, the Project encompassed the following: 1/ (a) Construction, furnishing and equipping of 78 educational institutions, 2/ viz.: - 65 rural schools, grades 1-4, with 13,000 places able to accommodate 17,400 children on a double-shift basis, plus 65 residences for the school teachers; - 10 urban schools, grades 1-6, with 3,000 places able to accommodate 5,400 children on a double-shift basis; - 3 teacher training colleges, two of them new and one an extension of an existing college, for 720 students, with 12 residential units for instructors and 240 places for residential students; (b) Equipment (vehicles, printing machinery and supplies) to improve ONAAC's literacy and community development programs; and 1/ See Appendix, Note 1. 2/ See Appendix, Note 2. - 26 - (c) Technical assistance of 7 man-years of specialist and consultant services in the fields of teacher training, non-formal education (ONAAC), education planning and administration, subsector studies and project management, together with fellowships (1 man-year) for 8 administrators from ONAAC, DARNDR, and DEN enabling them to study non-formal education and vocational and technical training programs abroad. Changes in the Project during Execution 3.07 Three modifications were made to the project during its execution, namely: (a) Amendment of February 27, 1980: this raised to 80%, from 70%, the amount to be financed under categories 1 (a) and (b) of the Credit, cost of civil works and professional fees. This change resulted from the fact that steel and cement did not have to be imported but were procured locally, thus increasing the counterpart funds. 1/ (b), Amendment of June 2, 1981: this authorized the construction by small contractors under direct supervision of the Project Unit of 6 schools (Bilee, Tamisee, Platon, Dolan, Jean-Denis, and Savane a Roches) and set the project closing date at December 31, 1981. These two changes were made because of the inability of local contractors to fulfill their commitments in regard to the 6 schools in question, as these had to be built in remote rural areas and the sites selected were difficult to reach. (c) Amendment of November 12, 1981: this authorized the construction of 3 schools (Campeche, Port-Margot and Bas Limbe) in accordance with the procedure adopted by the Project Unit to deal with a situation similar to that described in the amendment of June 2, 1981. Amendments 2 and 3 do not in any way relate to the steps taken by the Project Unit to provide technical and financial assistance to the contractors in order to facilitate completion of 18 2/ primary schools and 2 teacher training colleges. 3/ 1/ When imported, these construction materials (category 1(c)) were to be financed totally with the proceeds of the IDA credit; when procured locally, they were to be financed partly with government funds, thus reducing the credit proceeds originally allocated under category 1(c) and allowing the corresponding amount be allocated to categories 1(a) and 1(b). 2/ See para. 4.10. 3/ These steps taken by the Project Unit were to ensure that the project schools, not completed by the closing date, would be finished as quickly as possible. - 27 - IV. PROJECT EXECUTION Overview 4.01 Most physical aspects of the First Education Project were success- fully completed, through the gradual correction of shortcomings in project execution, particularly in construction programs, while the contracts were still being implemented. Problems with the execution of works were aggravated by financial difficulties as discussed in Chapter V. The difficulties encountered in construction were due to the short time allowed for project preparation. Neither the borrower nor IDA were in a position to foresee the full extent of the difficulties that would arise in building 65 small schools scattered over one fifth of Haiti's rural hinterland, where roads are either in very bad condition or simply do not exist. When the completion dates agreed upon with six contractors were passed, 28 rural schools and 2 teacher training colleges remained incomplete. 1/ Consequently the Project UnAt decided to take direct action to ensure their completion. Technical / assistance and the contracts for equipment gave rise to only moderate' problems. This is not the case for furniture, of which more than a third were not delivered by the supplier, despite the repeated reminders of the Project Unit. Project Execution and Management Unit 4.02 The Unit set up to manage this First Education Project, with the title "Bureau du Project" (Project Unit), was placed under the administrative supervision of the Conseil National pour le Developpement et la Planification (National Council for Development and Planning--CONADEP). 2/ The Project Unit was set up in January 1976 with the appointment of a staff of four to provide full-time support to a Director appointed in December 1975 by DEN. The qualifications and experience of the staff were deemed satisfactory by IDA, and the staff took up their duties in March 1976, the start-up date of the project. 4.03 The Project Unit was made up of a Director (a civil engineer with 15 years of government service), an educator selected by the Ministry of Agriculture with more than 18 years teaching and administrative experience in Haiti and abroad, an experienced accountant, a contract officer, and an educator trained in community development. In accordance with the Credit Agreement, DEN and DARNRD each appointed a liaison officer whose task was to coordinate activities of a pedagogical nature between the two departments. Support staff made up of an assistant bookkeeper, a bilingual secretary, five typists, two drivers and a limited general service staff were also recruited. 4.04 Instead of designating a single firm of architectural consultants, four were selected to prepare construction plans and documentation, and at the same time to perform the functions of a special technical committee attached 1/ See para. 4.10. 2/ Although execution of projects is not a function of CONADEP, the PIU was placed under it in view of potential conflicts between the existing two systems of primary education--see para. 3.02(f). - 28 - to the Project Unit. 1/ Technical assistance was provided to the Project Unit in the course of six short-term missions by CONESCAL. Changes to the Project Unit 4.05 Three changes were made in the composition of the Project Unit. The first took place in March 1978, when certain project activities, parti- cularly those of a pedagogical nature, were enlarged with the start of implementation of the Second Education Project (Credit 770-HA). The unit then had the following complement of full-time staff: a director-engineer, one assistant director-educator, one educator, one coordinator of community development, one accountant, one assistant bookkeeper and one contract officer. 4.06 The other change took place in 1979, when CONADEP became the Ministry of Planning, and the national education program was placed under the sole responsibility of DEN so projects financed by Credits 618-HA and 770-HA were placed under the DEN. 4.07 A cabinet reshuffle in 1979 resulted in the appointment of a new Minister of Education, and brought a change within the Project Unit. The Project Director was replaced and the administrative structure was reorganized; the Assistant Director was promoted to Director and the post of Assistant Director was assigned to an Architect. 4.08 With the exception of the Liaison Officer for DEN, who ceased to perform this function in January 1979, the special technical committee was maintained with-the consulting architects and strengthened by a consultant for civil works. This latter consultant proved indispensable in view of the takeover of certain construction activities to complete schools returned or abandoned by contractors. Results Achieved by the Project Unit 4.09 Located as it is within DEN's building, the Project Unit benefits from permanent contact with the Minister and the departments for which the construction programs and educational activities contained within the project are carried out. This favorable situation helped bring about close collaboration between Project officers and senior officials of DEN. Good coordination and a clear understanding of the project objectives produced very good results in the Project Unit's activities. The major reasons for this success, over and above the devotion and motivation of the staff at all levels, may be listed as: (a) Government support--Each and every Minister of Finance, Education and Agriculture appointed since Credit 618-HA was approved has paid very special attention to the two education projects being financed by IDA and has provided strong support for the Project Unit. (b) Stability of senior staff--Staff changes within the Project Unit have been minimal, and each and every replacement has been carefully selected. 1/ This arrangement was useful in the initial steps only, because it was informal and based on volunteer participation of consultants. - 29 - (c) Simplification of the Project--The activities of the Project Unit were facilitated as a result of the review and exclusion by the appraisal mission of certain components originally proposed (vocational training schools and laboratories to serve a number of secondary schools simultaneously), which would have made project implementation extremely complex. 4.10 Apart from a number of administrative irregularities in the orocure- ment of materials, attributable above all to lack of experience at the start of the project, PIU operations were conducted in an irreproachable fashion. It is also true to say that, in the case of the 21 schools left uncompleted by the contractors 1/ out of the total of 75, the devotion of the civil works section of the Project Unit was sorely tested. They had to take over abandoned works and rehabilitate them under trying circumstances (poor access, transportation difficulties, inadequate manpower, and very limited funds). 4.11 The Project Unit, which is currently executing Credit 770-HA, must be strengthened with the staff needed to undertake execution of the Proposed Third Project, in order to carry out the plans of the Government. The Government wishes to develop the construction section of the Project Unit further and convert it in the near future into a separate Directorate within DEN. This new Directorate would be responsible for the entire construction program for government schools, including those constructed with external financing. Evidence of IDA's support for this idea is to be found in the amendments to Credit 770--Ha, which include changes enabling the development of the Construction Unit, which is to be converted into a directorate towards the end of the Proposed Third Education Project. The proposed new directorate would have to consider among its activities, a program for systematic maintenance of school buildings. Foreign Experts 4.12 The assistance provided by CONESCAL 2/ 3/, experts helped the estab- lishment of basic standards. In future, the short visits of foreign experts should be more adequately planned so as to coincide with in-depth reviews of architectural designs for rural schools. Sites 4.13 Urban Sites. A number of difficulties were encountered in selecting sites for urban primary schools and teacher training colleges. Suitable land was hard to find, and the cost of sites was extremely high. As a result, the 1/ A total of 30 schools were completed by the Project Unit. Nine schools were totally executed by the Project Unit following cancellation of contracts. The remaining 21 schools had reached 15% to 40% progress when stopped, these contracts were not changed but contractors had only a nominai role. 2/ See Appendix, Note 3. 3/ Latin American Center for School Buildings. - 30 - number of primary schools had to be reduced, and in addition, the establishment of the application school for the teacher training college in Port-au-Prince was made possible only by the purchase of a private school adjacent to the training college. 4.14 A 20-month delay in the acquisition of the sites in Cap-Haitien and Gonaives for the teacher training colleges caused problems with execution of the construction program. Despite the fact that these sites are quite some distance away from the center of town, the size of the plots available did not permit construction on one level. Thus the teacher training college at Cap-Haitien was planned to have two-story buildings for teaching and teacher housing, and a three-story building for the dining room and student dormitory. 4.15 Rural Sites. These sites were selected by a team of Project Unit staff who had gained great experience in school site selection during the previous work financed by IDB. As a result, acquisition of sites for rural schools progressed smoothly. 4.16 Given the very nature of the project, the sites selected were far from urban centers. They were often difficult to reach, sometimes inaccessible even by four-wheel-drive vehicles. The tireless efforts of the community councils, suitably motivated, rapidly made this problem less acute. The sharp inclines on certain access roads and the presence of torrent- filled ravines were the main problems encountered. It is also obvious that, as the project advanced, more and more isolated localities were chosen as sites. 4.17 Although the Credit Agreement called for the construction of new schools, the Project Unit selected seven sites adjacent to existing schools where enrollment demand was heavy, thus making the new schools in fact extensions to existing schools. 4.18 In future projects, for all the sites needed in urban areas and certain rural areas that might give rise to problems, property titles should be legalized before such schools are included in a new project. Design Firms 4.19 Initially, four engineering and architectural firms were engaged to study the plans and prepare the estimates, specifications and bidding documents for the rural and urban schools and the teacher training colleges. One of these firms quit early as a result of a misunderstanding concerning the nature of the work to be performed. The three other firms continued to perform their contractual obligations through the end of the project. 4.20 Preparation of plans was generally satisfactory, but the estimates did in some cases omit quantities and items sufficiently important to affect the cost of some structures; lack of communication between the design firms, DEN officials and the Project Unit led to some facilities and buildings being designed in a rather impractical fashion, particularly with regard to layout of kitchens and sanitary facilities in the teacher training colleges. 1/ 1/ See para 4.41. - 31 - Supervision of the construction and civil works was distributed among the three remaining firms, all of which ran into some rather difficult problems. Chief among these were: (a) dispersion of the work sites and access difficul- ties due to seasonal rains; (b) particularly inadequate logistical arrangements in regard to supervision of construction compared with the needs of the plans and specifications. The construction documents, periodic reports and approved invoices showed a lamentable indifference on the part of the supervisors with regard to quality and progress of works in hand, and (c) the excessive duration of the construction period. This made the inspection services not a very profitable undertaking, since their cost was calculated, under the supervision contract, on the basis of 7% of the invoices presented by the contractors. The estimated 10-month construction period was exceeded substantially in every case, but at no time was consideration given to adjusting the cost of supervision; it must also be stated that the quality of supervision was not such as to encourage such a revision. 1/ 4.21 Experience with the use of design firms in implementation of this project shows that if these services had been requested for optimal technical participation, the cost would have been much too high in relation to the total cost of the project. 4.22 Consultants were paid a fixed fee for their office work and field supervision. Civil works suffered as a result because the Project Unit, in the interest of maintaining its budget, tolerated hasty supervision. Opti- mistic calculations were made in assessing work progress. Supervision was insufficient, therefore contractors were not properly controlled, and the volume of work exceeded appraisal estimates. Moreover, post-completion inspection was carried out when it was too late to improve quality. Basic Plans for Primary Schools 4.23 Building Plans and Consultant Firms. Except for some minor short- comings, the plans prepared by the consultants were generally good. However, replication of the standard primary school plans finally proved costly. In future, the services of consulting firms should be used essentially for the study of special schools and certain specific tasks such as the upgrading of plans that are to be used repeatedly. Upgrading of that type should be based on systematic analysis of buileings put up under earlier projects financed from various sources, and the aim should be to focus on simple construction methods and increase the use made of such local resources as stone, bamboo, clay, etc. Construction 4.24 Awarding of Contracts. Civil works for the project, divided into three phases, were awarded following international competitive bidding for all phases of construction. In order to establish a list of prequalified contractors and to expand this list, prequalification notices were issued at various times during the period of project execution. It should be noted that: (a) of 30 prequalified firms, 4 were foreign; 2/ (b) of 30 prequalified firms, only 10 submitted at least one bid in response to calls for bids for construction, and 6 local firms signed contracts for construction. 1/ See Appendix, Note 4. 2/ See para 4.27. - 32 - 4.25 The bidding procedure, from publicatiot of notice to award of the contract, took place in every instance in accordance with the proposed schedule. Considerable delays occurred particularly in obtaining approval and authorization from IDA (average of 3 to 6 weeks) and the relevant national authorities (average of 4 to 8 weeks), 1/ both for the contracting and for advance payments and disbursements in connection with implementation of the contracts. 4.26 Prequalification was conducted in accordance with the standards established by CONESCAL. Initially, however, the interpretation of these standards by the Project Unit proved optimistic. Following the call for bids for first-phase construction works, stricter criteria established were laid down to improve the competence of contractors to be selected for the second and third phases. Experience showed that prequalification is not the key factor for an efficient construction of buildings designed to house project rural schools. 2/ 4.27 School Construction. During the first stage of project implementa- tion, the Borrower decided to have construction carried out in accordance with the normal procedure of local competitive bidding, because foreign firms stated that they were not interested in competing, 3/ and available time was too limited for the PIU to organize work on force account, which would have been better. 4/ 4.28 IDA underestimated the extent of the difficulties that would be encountered by the Project Unit, the consultant architects and the contractors in the execution of a project encompassing 65 small schools scattered over the rural areas of Haiti, barely served by roads. These difficulties were reflected in higher costs than anticipated in the contracts. From the very start of construction work, the contractors displayed a marked preference for the easier sites, to the detriment of the more remote ones. Work on the more remote schools came to an almost complete standstill after excavation or construction of the subfoundation. The problems of bringing in cement blocks, iron, and sand during the dry season surpassed the transport facilities available to the constractors. 5/ This problem of access also made supervision expensive and made it difficult to manage the construction sites properly. 4.29 By 1979 the problem worsened due to the shortage of counterpart funds, and all the contractors, except one, stopped construction work and abandoned those sites that had not yet been started. DEN, realizing that updating of the contracts would require a substantial increase in cost beyond 1/ Lack of experience of the PIU reflected in underestimating time required for processing approvals; this created difficultues to contractors and PIU. 2/ See Appendix, Note 5. 3/ The 7.5% preferential margin for local bidders was not specified. 4/ See Appendix, Note 6. 5/ Due to lack of financial resources and poor organization. - 33 - the means of the Project and PUU's management capability having been strengthened by that time, decided to finish the 21 schools and undertake construction of 9 others, 1/ by strengthening the team of architect-engineers within the Project Unit. 4.30 Annex 3 indicates the date of completion and additional costs for each of the schools in the Project. The cost of construction by the Project Unit rose by almost 15%. 2/ 4.31 Construction of the teacher training colleges is very much behind schedule because of the priority given to rural schools. The only training college that has been completed is the expansion to the college in Port-au-Prince, which has been in operation since November 1980. The colleges in Gonaives and Cap-Haitien are expected to be operational by October 1982. 3/ The situation with regard to each of these colleges and their application schools is as follows: 4.32 Port-au-Prince. There is a problem with the residential facilities for the students, as the dormitories are located in the remodeled wings of the existing buildings. Although there is space for 60 students, instead of the initially programmed 50. 4/, the headmistress is asking for 80 places: there are two alternatives for resolving this problem: 5/ - extend the dormitory area as needed; - offer the 20 non-residential students meals, washing facilities and all other services available to residents, plus a monthly allowance to cover the cost of renting rooms for 2 or 3 students each in houses close to the college. It would, however, be preferable for all the students enrolled in the college to enjoy the benefits of residential life, and not just some of them. The application school was purchased by DEN. It is suitably located on a site adjacent to the training college. 4.33 Cap-Haitien. This college is located at Vaudreuil on a site made available by a religious community. At the end of March 1982, construction was almost 90% complete, the delay being due to financial problems encountered by the contractor, who has been receiving financial and technical assistance from the Project Unit since January 25, 1982; construction is expected to be 1/ See footnote 1 to para. 4.10. 2/ Over prices of abandoned contracts. See also Appendix, Note 7. 3/ Gonaives, however, experienced more delays and is now expected to be completed by January 31, 1983. 4/ Working papers indicate 50 boarding places for this school due to space limitations in existing buildings. The other two colleges have 80 boarding places; the total boarding places provided is 210. DEN is now interested in providing boarding facilities to all TTC's students (240 students at each of three schools). 5/ By adding a new building. - 34 - completed by April 30, 1982. 1/ No application school was planned for this college, given that the Vaudreuil region is well served by a number of primary schools. DEN is taking steps for the formal use of these primary schools as application schools. On the initiative, however, of the services responsible for coordinating teacher training matters, and with IDA's approval, it has been agreed that a primary school of the Second Project will be relocated in order to serve as application school for the teacher training college at Cap-Haitien. 4.34 Gonaives. This training college is located at Bigot near Gonaives. In March 1982, construction was 40% complete; as in the preceding case the delay has been due to financial problems encountered by the construction firm (and more particularly to omissions of some works in the bidding documents compared with the plan for the building to be constructed). 2/ The Project Unit is getting ready to play an active part in the final phase of construc- tion, which is to be completed in August 1982. 3/ An application school is being built simultaneously on the site occupied by the training college under Credit 770-HA. 4.35 Civil works. Because of the small size and remote location of the rural schools, their construction has proved extremely costly and has presented difficulties in regard to bidding and contracts. Construction of rural schools should be based on: (a) bulk purchase of materials (cement, steel, boards, etc.) and certain components (roofing elements, doors, windows, etc.); (b) warehousing facilities that allow speedy distribution of materials and components to the building sites; (c) availability of specialized architects and engineers to manage primary schools civil works, assisted by specialized entrepreneurs who would maximize the use of unskilled labor, by organizing programs of basic training. 4/ 4.36 Supervision of Civil Works. Although fees amounting to 7% of the estimated costs had been budgeted for supervision, the remoteness of the primary schools and the slow pace of construction made it impossible for the supervisory firms to cerry out their duties properly. The real costs for effective supervision proved to be much higher than the estimated costs, in proportion to the estimated total cost of the rural schools. Super- vision of the construction of primary schools should become a direct responsi- bility of the Project Unit. It appears to be essential to hire resident super- visors for groups of about five schools in order to ensure proper monitoring of the construction of the rural schools and some of the urban schools. 1/ The school was completed by September 30, 1982. 2/ This omission by a consultant firm was not detected by the PIU. Although bidding conditions specify that bidders would be totally responsible for quantities and prices under a lump sum contract basis, bids submitted had no comments at all on the matter. 3/ The school is now expected to be completed by December 31, 1983. 4/ On-the-job training for workers. - 35 - Use of Staff Housing 4.37 It has been noted that, of the 441 teachers assigned to the 55 schools that have been completed, only 149 or 34% use the residences made available for seven days of the week, 256 or 58% occupy them for five days, and 36 or 8% do not reside on the premises, commuting instead from an urban center or a neighboring village to the site of the school. The use made of school residences should be continually monitored to determine whether future needs should be met by a conventional dwelling or a simple dormitory for the days on which classes are held. Furniture and Equipment 4.38 The furnishing and equipping of the schools under the Project represents an important component of the project. The basic lists prepared by the Project Unit in collaboration with all the national agencies involved were drafted with technical assistance from CONESCAL. The furniture and equipment were purchased under international competitive bidding, in accordance with the procedures suggested by IDA. All furniture was manufactured by domestic companies, 1/ while all equipment came from overseas. In general, the furniture and equipment met the required specifications. 4.39 Although the furniture distributed by the Project to primary schools represents a major step forward compared with the present situation in many public and private schools, there are some aspects requiring improvement, particularly the following: (a) The plans for the tables and benches should be revised so as to reduce the number of boards used, while at the same time making them strong enough for at least a 15-year period of use with minimum maintenance. The plans should be drawn up in such a way as to permit repairs to be made by any member of the community. In addition, the savings that are possible with the use of metal parts should be carefully examined and analyzed; and (b) The manufacturer did not fully recognize the cost implications of transporting the completely assembled furniture, as compared with the production in plant of parts of furniture properly packaged for final assembly in each school by one skilled craftsman aided by the community. Furniture assembled in site requires very strict quality controls, but may prove attractive in terms of production and transportation costs. An alternative solution would be to place orders in small quantities with small artisan workshops located in towns near the schools, rather than manufacturing all the furniture in Port-au-Prince. 4.40 The plans for the furniture for the project schools, and for its manufacture, were not organized in such a way as to achieve rational use of materials and transportation facilities. 2/ The furniture should be designed 1/ Bids specified delivery to each school; foreign suppliers were not interested. 2/ IDA suggested the improved approach, but the PIU decided to pursue the conventional method in order to simplify control. - 36 - for easy manufacture, storage and low-cost transportation of the parts to be assembled with the aid of tools normally available in the area of the school, possibly with participation from the community and the teachers. 4.41 In most cases, the equipment was properly chosen. However, there were some problems with omissions and improper specifications, for example: (a) The kitchens for the preparation of meals for the residential students at the teacher training colleges were equipped with gas stoves. This was criticized by the Principal of the Port-au-Prince college because of the high gas price and problems in securing timely delivery of gas bottles in Haiti; and (b) The books for the libraries in the teacher training colleges have not yet all been delivered, so that these libraries are not yet being used to full capacity. 4.42 The delivery periods allowed were more than ample, but the excessive delays in construction necessitated storage for a period exceeding anything the suppliers had forecast, and upset the schedules for delivery and control of articles supplied. All the schools received the minimum items needed for operation, but some schools are still awaiting receipt of their full complement of furniture and equipment. In the teacher training colleges there is a marked shortage of library books, and also a shortage of items and consumable materials required for the teaching of practical subjects. 4.43 Equipment for ONAAC. In order to ensure better operation and more effective supervision of ONAAC's literacy and community development programs, the project made educational equipment aVailable to ONAAC's headquarters in Port-au-Prince and to its regional offices for the Artibonite Valley and the Plaine du Nord where the primary schools built under the project were to serve as community education centers; 20 motor bicycles were added to the equipment in order to facilitate the visits to ONAAC's rural centers by regional and district supervisors. However, the purchase of eight mobile units equipped with audiovisual materials and other teaching aids was dropped as ONAAC was not in a position to prepare and subsequently apply a plan of action that would make rational use of such materials. 1/ 1/ The rest of the equipment consisted of audio visual aids, radio sets, duplicating machines and printing materials. This equipment was used by the supervising and community action counseling services of ONAAC. - 37 - Technical Assistance 4.44 The technical assistance scheduled to contribute to achievement of the project objectives comprised seven staff-years of specialist services plus 1 staff-year of fellowships for the training of ONAAC, DARNDR and DEN staff. 4.45 Specialist Services. Five specialists were recruited under contracts with UNESCO and ILO. 4.46 The expert on statistics (9 months) made a good contribution in the unified presentation of data on educational statistics collected in the two subsectors (urban and rural) at a time when such data were scarcely available. This assistance was subsequently continued through another specialist made available to the government by UNESCO, making it possible to obtain reliable data on the system and to have these published regularly by the Statistics Section of DEN. 4.47 INFP was able to make good use of a study 1/ conducted by the specialist in vocational training (6 months). In addition to preparing a dossier, the specialist had time to train a Haitian counterpart able to conduct surveys in this field. 4.48 ONAAC was very appreciative of the extremely positive contribution made by the specialist in community development (9 months). On the basis of problems observed in the field, the Specialist proposed a policy and suggested steps to be taken to promote functional community action. 2/ 4.49 The expert on teacher training (15 months) certainly contributed to the setting up of the Mobile Unit, 3/ after he had noted the absence of any organized structure to provide new schools with the support needed for proper start-up. However, due to a lack of collaboration, he was unable to assist in preparing a comprehensive training plan which could have permitted integra- tion of the various subprograms intended for different categories of teachers. 4.50 The specialist in education administration (13.5 months) had to work in rather difficult conditions, as the counterparts appointed by the Ministry were either lacking in motivation or were not available. The two 1/ The specialist conducted surveys of the largest industries to ascertain their manpower training needs and assisted INFP to translate those needs into training programs. 2/ His recommendations have been followed up. He was also instrumental in improving the monitoring and reporting system of field activities. This expert served ONAAC for two additional years under a UNESCO contract. 3/ For supervision. - 38 - studies that he left behind--the first on working conditions for teaching staff, and the second on the administration of education in Haiti--led to the Organic Law of the Ministry of Education which was promulgated in September 1979, and the "Statut du Personnel Enseignant" which has already been submitted to the Administrative Commission for examination thanks to the diligent efforts of the current Expert, who took over this task. 4.51 Fellowships. Six administrative staff, four from ONAAC and two from the Vocational and Technical Section of DEN, plus two directors of DARNDR vocational schools spent time abroad: two in Peru (ONAAC), two in Mali (ONAAC), two in Paris (DEN), and two in Colombia (DARNDR). The two fellowship holders who went to Paris and those who spent time in Mali do not seem to have been happy with the arrangements made by UNESCO and ILO for their accommodation. All, on the other hand, were generally positive about their program of observation and the institutions they visited. They made particular mention of their contacts with teachers, sharing their concerns for adaptation of curricula, production of appropriate teaching materials, finding answers to daily problems, etc. 4.52 Except for one of the ONAAC officials, who was appointed to head a department in the Ministry of Information, all the other staff continue to serve in the fields of community development and the administration and supervision of training programs. Two of them have been promoted to head the sections or departments to which they belong. 4.53 The total cost of technical assistance, which was funded in its entirety by the Credit, was US$497,328.60, of which US$225,872.26 was paid to UNESCO and ILO to finance expert services and fellowships, while US$271,501.34 was spent to defray expenses and allowances 1/ in connection with: (a) seminars for new school teachers, family education agents, and ONAAC monitors; 2/ (b) activities of the Mobile Unit; 3/ (c) costs allocated to the Consultative Committee and the Curriculum Unit; 4/ (d) a school map study; (e) consultative missions undertaken by CONESCAL; 5/ (f) trips or internships overseas for members of the Project Office. 1/ See Appendix, Note 8. 2/ See para. 6.37. 3/ See paras. 6.39-6.42. 4/ See paras. 6.07-6.10. 5/ The CONESCAL services, financed under Technical Assistance, are referred briefly elsewhere (paras. 4.04, 4.12). Also see Appendix, Note 3. - 39 - IDA Contribution to Project Execution 4.54 There were 15 missions from IDA in six years, giving an average of 4.8 months between missions and 1.6 staff-weeks per mission. Two architects and four educators were included on the staff of these missions. Of the total number of 15 missions, 7 were composed of an architect and one or two educators, while the other missions were made up of an architect (6 missions) or an educator (2 missions). Generally speaking, the frequency of the missions enabled the IDA educators and architects to deal on a regular basis with problems as they arose. 4.55 The relatively, short spacing between missions 1/ was justified during the start-up phase (1975-1978) by the need to facilitate initial project imple- mentation. After 1978, simultaneous execution of this Project and a second project under Credit 770-HA required roughly the same spacing but more time in the field. Later, the preparation and introduction of the Proposed Third Project increased the amount of work to be done by IDA missions. While this strategy was not initially appreciated by IDA, the gradual improvement of communication between the Project and IDA partially offset the time constraints on visits by project missions. 2/ 4.56 Despite the efforts of the various missions to help solve the financing problems which gave rise to considerable delays in the progress of the works, the effect of their contribution in this area can be regarded as minimal. 1/ In comparison with other LAC education projects. 2/ The frequency of the missions is considered to be adequate; however, the increasing complexity of the simultaneous implementation of two projects and the preparation of a proposed third are not reflected by the manpower allocated for supervision (see Basic Data sheet). Supervision constraints in few cases have been severe, for example since the start of Credit 770-HA, only one in-depth supervision mission has been in the field. Undoubtedly, some of the implementation problems might have been signaled earlier if more supervision had been carried out. - 40 - V. PROJECT COST AND FINANCING Project Cost 5.01 Overall project cost, namely US$7,787,659.86, 1/ exceeded the initial Appraisal Report estimate of US$6,500,000 by US$1,287,659.86, or 19.8%, for the following reasons: (a) The only project administration costs included in the Appraisal Report estimates were salaries of key-staff, some items of furniture and some vehicles. Excluded from the appraisal report estimates were all other operational expenditures 2/ which amounted to 5.2% of actual cost. 3/ (b) An increase of US$982,389.40 or 15.2% over the initial estimate is due: (i) a 12-month delay in launching and a 20month delay in executing the project, and (ii) variation in prices described in Table V.1. 5.02 Cost overruns dated from 1979, when contractors refused to continue working at the initial contract prices. As it was too late at that stage to reduce the scope of the project without damaging effects, the government opted for completing it as planned. The reasons for this decision were that: (a) all contracts had already been signed and most construction work had commenced; (b) it was important to complete the entire project, including the building of three teacher training colleges, and also to provide facilities for primary project schools where classes were held in temporary, unsatisfactory premises (because teachers had already been recruited for most project schools). 1/ In addition, the Government purchased the application primary school at Port-au-Prince, amounting to US$20,000. 2/ E.g., salaries and per diem of most staff; gasoline, oil and maintenance of vehicles; telephone, telex and mailing costs; etc. 3/ US$403,500 (see Table V.1). 5.03 Total project cost is summarized by category in Table V.1: TABLE V.1: Estimated and Actual Project Cost WORLD BANK GOVERMENT OF HAITI TOTAL ESTIMATED ACTUAL ESTIMATED ACTUAL ESTIMATED ACTUAL Construction and 3,670,000.00 3,803,264.52 780,200 1,804,127.26 4,450,200 5,607,391.78 Architects Fees i - Equipment and 1,180,000.00 1,050,026.07 109,200 80,032.35 1,391,400 1,130,058.42 Scholarships and 500,000.00 497,328.60 - 0.00 447,300 497,328.60 Technical Assistance 7 _ Overheads 150.000.00 149,380.81 110,600 403,500.25 180,600 552,881.06 TOTAL 5,500,000.00 5,500.000.00 1,000,000.00 2,287,659.86 6,469,600 7,787,659.86 RLARKS: To cover the deficit, the Government put up....... $ 58,755.90 and an additional sum of ......................... 703,903.96 This raised the Local counterpart contribution to 2,287,659.86 and the actual cost of the project to .......................................................$7,787,659 5.04 Unit costs per student for buildings, equipment and furniture are given below: Table V.2: Unit Building Costs per Student (in US dollars) ESTIMATE ACTUAL DIFFERENCE % Rural Schools 133.00 203.90 + 70.90 +53.3 (4 classes) Urban Schools 175.00 157.58 - 17.41 - 9.9 (6 classes) Urban Schools 150.50 156.61 + 6.4 + 4.0 (12 classes) Teacher training 606.00 1,098.00 + 492.00 +81.2 Colleges (Academic level) Average +32.1 - 42 - Table V.3: Unit Equipment Costs'per Student (in US dollars) ESTIMATE ACTUAL DIFFERENCE % Rural Schools 16.76 25.40 + 8.42 +49.5 (4 classes) Urban Schools 10.58 11.32 + 0.62 + 5.7 (6 classes) Urban Schools 8.00 7.80 - 0.30 - 3.7 (12 classes) Teacher training 212.14 269.04 + 56.26 +26.4 Colleges Average +19.5 Table V.4: Unit Furniture Costs per Student (in US dollars) ESTIMATE ACTUAL DIFFERENCE % Rural Schools 22.07 33.36 + 10.89 +48.5 (4 classes) Urban Schools 21.15 29.50 + 7.94 +36.8 (6 classes) Urban Schools 20.45 26.78 + 6.70 +33.4 (12 classes) Teacher training 143.79 82.12 - 36.95 -31.0 Colleges Average +21.9 5.05 The sharp increases in unit building and equipment costs for teacher training colleges were ascribable to: (a) necessary supplementary works (grounds, fencing, subsidiary buildings, separate kitchen blocks) not provided for in the contracts; (b) higher-than-expected inflation owing to the slow rate at which works were executed; and (c) unforeseen additional educational equipment required for the teacher training colleges. Furniture costs were lower than estimated because some living quarters, subsidiary buildings, libraries and offices are under-equipped and certain necessary furniture had not been included in the bidding documents. 5.06 Primary-school building, equipment and furniture costs include the facilities required for literacy, community development and domestic science programs; these facilities were intended for use by children during the day and adults in the evening, but are currently used by adults during the day. - 43 - Counterpart and IDA Funds 5.07 Although the Appraisal Report had estimated the necessary counterpart funds at 15.3% (US$1.0 million) of the expected project costs (US$6.5 million), they in fact amounted to 29.3% (US$2.3 million) of the actual final cost (US$7.8 million). Originally assessed at US$1 million, they totaled US$2.28 million in the end, an increase of 128%. 5.08 It was difficult at the outset to foresee the likely extent of the need for additional counterpart funds, given the false impression created by the optimistically low prices embodied in the first bids on civil engineering components. In consequence, the Project Unit only reacted to the problem when the originally estimated counterpart funds were almost exhausted. Even though the government manifested a very particular interest in education projects, it had to make consistent efforts to find the additional US$1.28 million required as counterpart funding. Having become aware of the government's inability to supply counterpart funds as needed, IDA has proposed to decrease the percentage of counterpart funding to 10% in the Proposed Third Project. 1/ In the case of Haiti, any reduction of this rate to a lower figure for future projects would be justified. 5.09 The IDA contribution, US$5.5 million which was 85% of the appraised estimate of total costs and 71% of the actual total cost, was entirely dis- bursed by January 21, 1982. Disbursements 5.10 The funds made available under this Credit Agreement were disbursed at a slower rate than foreseen in the Appraisal Report owing to delays in the release of counterpart fundq and in actual launching of the project. The following table shows the differences between estimated and actual disbursements: Table V.5: Scheduled and Actual Disbursements (in millions of US dollars) FISCAL YEAR 1976 1977 1978 1979 1980 1981 1982 Appraisal Estimates .5 2.55 4.10 5.30 5.50 5.50 5.50 Actual .0 0.33 1.24 2.50 3.57 4.95 5.50 Percentage a/ .0 12.9 30.2 47.2 64.9 90.0 100.0 a/ Actual/estimated. 1/ The proposed low share for Haiti being considered in Project III is due to the current difficult financial situation. - 44 - 5.11 Periods of three to six weeks were needed to obtain approval from the Court of Audit (Cour Superieure des Comptes) and the Ministries of Planning and Finance for Project Unit disbursement applications. 5.12 As far as future projects are concerned, it is very important to review in detail the procedure for disbursements and make recommendations to simplify them. In addition to the time required to process an application for disburse- ment in Haiti itself, about three to six weeks are taken up in authorizing payment and transferring IDA funds to Haiti. Opening of a special IDA account with the Central Bank would improve matters, enabling applications to be paid immediately in the local currency, and the counterpart account replenished shortly. Operating Expenses 5.13 According to the Appraisal Report, operating expenses of the education sector in fiscal 1973/74 amounted to US$6.4 million, or 18.8% of the national current budget. In fiscal 1981/82, operating expenses (including those connected with the schools constructed under the project) totaled US$18.4 million, or only 15.1% of the national current budget. The cost of operating the new schools has not placed too great a burden on the financial capacity of the Government because: (a) the number of new teachers assigned to them has increased the total number of public primary school teachers by only 5%; (b) the new buildings need no maintenance for the moment; and (c) the current allocations by the Ministry for school overheads are small--US$140 a month per project primary school (an average of US$0.50 per pupil) and US$400 a month per project teacher training college (an average of US$26 per student). 5.14 However, DEN operating expenses can be expected to increase sub- stantially: the intended improvements in teachers' working conditions and salary envisaged in the Statut de l'Enseignant; the proposed conversion of the Project Unit into a School Construction Department with specific responsi- bilities for maintenance and repairs, and the need to provide all teacher training colleges in the country with essential materials. DEN is also well aware of the operating costs incurred in sustaining all its other activities, including those occasioned by future projects. Regarding the financing of future projects, it is recommended that the international agencies involved assume responsibility not only for capital investments but for operating expenses as well.l/ 1/ See para. 1.05. - 45 - VI. IMPACT OF THE PROJECT ON THE EDUCATION SYSTEM Overview 6.01 The major general objective of the First Education Project was to effect both qualitative and quantitative improvements in the primary education system. Analysis of the results obtained shows that the project accomplished that objective satisfactorily, acting as catalyst for a series of measures taken by DEN. Those results can be examined from three standpoints: the building of education facilities (primary schools, community centers and teacher-training colleges); the strengthening of DEN management; and prepara- tions for the Education Reform now being introduced. The Primary Schools and their Utilization 6.02 Enrollments. The number of students (current + expected increment), the percentage of qualified teachers and teacher/student ratios are shown in the following table: 1/ Table VI.1: Number of Classes, Students and Qualified Teachers No of students current No of and No of % of Teacher- No. of class- expected teachers qualified student Schools rooms increment* teachers ratio 7 (urban) 54 2/ 2,795 ) 18,787 59 69.4 1:47 55 (rural) 3/ 220 15,992 ) 261 82.6 1:61 10 (rural, 44 2,180 * 29 64.4 1:48 unfinished) 4/ 318 20,967 349 81.2 1:60 6.03 About 81% of all teachers are qualified, thus exceeding the target of 50% laid down in the Credit Agreement. It must be stated, however, that their qualifications do not entirely match the new curriculum requirements-- which is why the teachers are being systematically given refresher training through IPN to prepare them for the planned reforms. 1/ See Appendix, Note 9. 2/ The Borrower points out that in June 1983 the number of classrooms is now 60. 3/ These schools were completed and in operation by October 1982. 4/ Six expected to be finished by March 31, 1983, 4 were completed by September 1982. - 46 - 6.04 In the seven urban schools, the reacher/student ratio is 1:47, or slightly lower than the 1:50 recommended in the Credit Agreement. On the other hand, the same ratio in the 55 rural schools is 1:61, mainly because parents have pressed teachers strongly to enroll their children in the project schools. The government was consequently obliged to appoint additional teachers, who hold classes in workshops or dwellings or use a number of old classrooms now renovated by DEN. It should nevertheless be pointed out that the rural teacher/student ratio of 1:61 is only a theoretical figure, since in practice there is 10-15% student absenteeism in rural areas; the real ratio here is therefore more like the 1:52-55, closer to the 1:50 ceiling recommended in the Credit Agreement. ln the long run, however, the problem of overcrowding in rural areas will only be solved when the rural schools include more than the present four classrooms. 6.05 If that 1:61 teacher/student ratio is compared to the figure of 1:73 in other rural public schools, the project schools are models as far as conditions for teachers are concerned. 6.06 Of the 18,787 students 1/ currently enrolled in the project schools, a total of 1,684 are affected by the two-shift system: 24 groups, consisting of 1,190 students, attend school in the morning, while 12 groups, with 494 students, do so in the evening. Almost all the schools which run two shifts are in urban areas. In the countryside, parents are not willing to send their children to afternoon school, especially not those who live at distances of over four or five km. Neither are rural teachers prepared to work both morning and evening, since they receive no salary supplement, unlike their urban counterparts. As a means of increasing the possibilities of access to schooling, reducing class overcrowding in the project schools and achieving better utilization of existing primary-school facilities, the government should consider the two-shift system as a potential remedy for current problems. Extension of the system would certainly merit in-depth examination in the light of local and regional constraints revealed by the school map now being drawn up as part of Credit 770-HA. 2/ Such examination should include a study of incentives for teachers and of a widespread campaign to win the approval of both teachers and parents for the two-shift system. 3/ 1/ See table in Para. 6.02. 2/ Second Education Project. 3/ Nationally, only 3% of the schools have two shifts at present; these are mostly urban public schools. See table. Percentage of Schools Utilizing Double Shift Public Schools Private Schools Total Urban Areas 16.7 1.7 5.8 Rural Areas 0.8 1.0 0,9 Total 6.4 1.3 3.0 Source: DEN Statistics Unit: Etude d'un echantillonnage d'ecoles primaires, 1980/81. December 1981. - 47 - 6.07 The Curriculum. Concurrently with the school-building program, systematic studies on the design of new curricula were to be undertaken by IPN in conjunction with other international agencies. Unfortunately, IPN work at that time was focused more on research that did not automatically lead to the development of new curriculum content. The Project Unit therefore suggested the creation and institutionalization of an Advisory Committee and a Curriculum Development Unit with more specific responsi- bility for drafting new curriculum material for the first four grades. IDA agreed that the cost of financing these activities could be charged against the proceeds of Credit 618-HA. 6.08 Subsequently, the two new bodies were merged into the Curriculum Committee which, besides working closely with IPN, also contributed in making possible development of new curricula and the production of teaching materials. An important factor in this work was the introduction of Creole, which, pursuant to the Decree of September 18, 1979, was to become both the language of in- struction and a subject of study in the primary schools, with French being taught orally in Grades 1 and 2 and in the written form from Grade 3. The new curriculum for the first four years of basic education was therefore drawn up very largely in Creole. Its introduction began experimentally in 1978/79 in the Departments of North, Northeast and Artibonite. From 1980, the experiment was extended to 600 classrooms throughout the Republic, and its universal use in Grade 1 is scheduled for October 1982. 6.09 Teaching Materials. Writing of the first manuals (readers and writing primers) and of the accompanying teachers' handbooks was the work of special IPN and Curriculum Committee teams. This material, known as "pre-experimental material", was used in the first 18 experimental schools as of October 1978. 6.10 Credit 618-HA, in conjunction with Credit 770-HA, assisted DEN in its experiments with the new teaching material, use of which, beginning in October 1979, was gradually extended. At the time the Project was completed, four primers for pupils and nine handbooks for teachers had been written and printed under Credit 770-HA. ONAAC Programs 6.11 Since the school system is also viewed as having a role in eradicating illiteracy and upgrading the quality of life at the local, regional and national levels, the Haitian school provides considerable assistance for teenagers and adults, who can make an important contribution to the improvement of their communities. In order to further this work, the Project Unit, in conjunction with ONAAC, introduced a literacy and family education program (cooking/nutrition, tailoring/sewing and community development). I/ 6.12 During the year 1981/1982, the number of adults (mainly women) enrolled with the ONAAC centers operated at completed project schools was 1,655 in rural areas and 274 in urban zones. By comparison with the projected figures, 2/ these numbers show that ONAAC utilized no more than 1/ Equipment for these activities was provided from the credit funds for the project schools to be used by their students and by ONAAC. 2/ 3,000-4,000 in the rural areas and 1,500-2,500 in the urban areas. - 48 - 50% of the potential offered by available school buildings. 1/ Furthermore, no statistical data were available on the distribution of these students by level of schooling. 6.13 ONAAC has a total of 29 instructors assigned to the areas served by the project schools. The small size of this group is perhaps explained by the number of withdrawals because of dissatisfaction with the modest salaries paid. 6.14 In view of these quite poor results, the main recommendations would be that an evaluation study be made of the ONAAC activities financed under the Project. The objectives of the program, their suitability and implementation, and staff organization should be examined. The CINECs 6.15 A new program has been developed thanks to the First Education Project. 2/ The CARE Foundation was represented on the sub-committee responsible for designing the domestic science component of the new curriculum. Field surveys conducted 3/ in 1974 and 1975 had demonstrated that the poor nutri- tional condition of school-age children was one of the main causes of failure to attend school. 6.16 In an attempt to remedy this state of affairs, CARE has been setting up Integrated Centers for Nutrition and Community Education (CINECs) in the areas served by the project schools. CINEC objectives are as follows: - to bring 16,250 children up to good nutritional status, at the rate of 50 five-year-olds and 200 zero to four-year-olds per CINEC per year; - to use suitable pre-school programs as a means of preparing young children for their entry into primary school; - to teach children daily personal hygiene; and - eventually, parent education. 6.17 Results have been excellent: surveys failed to identify any drop-outs. Eighty-seven percent of children in the first CINEC groups are today in Grade 3 (experimental) of the basic education course. A general improvement can be seen in the nutritional status of the community, in personal hygiene and in the physical upgrading of dwellings. 6.18 This work has been possible only because of the constant presence of the CINEC agents, who live in the accommodations provided for teaching personnel. It is to be noted that after CARE has supported them for three years, the CINEC agents are now being paid out of the national budget. It is recommended that the CINECs be provided with all possible assistance in continuing and expanding their activities. - 49 - The Teacher Training Colleges and Their Utilization 6.19 Enrollments. The Port-au-Prince Teacher Training College has been in operation since October 1980. Building of the new colleges at Gonaives and Cap-Haitien was delayed when the contracting firms suspended work, requesting significant additional payments which could not be met from the proceeds of Credit 618-HA. It was at that point that the Project Unit personnel stepped in and took over construction. These two new colleges will open in October 1982. Current figures for the three teacher training institutions are as follows: Table VI.2: Actual 1981/82 Enrollments at Teacher Training Colleges and Project Estimates Actual Appraisal Year 1 Year 2 Year 3 Total Estimates Port-au-Prince 62 67 41 170 240 Gonaives 1/ 18 12 7 37 240 Cap-Haitien 1/ 97 33 26 156 240 Graduates 74 240 6.20 As is.clear, current figures are well below the appraisal estimates. On completion of the project, 240 teachers should have graduated from the three teacher training colleges, whereas only 74 will do so in 1982. The primary reason for this shortfall is the difficulty of recruiting candidates with sufficiently high academic qualifications. 2/ It is therefore to be hoped that the Statut de l'Enseignant as drawn up with project technical assistance will attract many more candidates and keep teachers already in the ranks in their jobs. 6.21 As a further means of making up the teacher deficit, it is recommended that the construction of teacher training colleges be assigned the highest instead of the lowest priority under the schools building program. 6.22 Curriculum. According to the terms of Credit Agreement, a single curriculum was to be developed for the teacher training colleges, whether located in urban or in rural areas. The old curriculum was therefore revised between March and July 1976 by a seven-member ad hoc committee, which delegated the work on particular disciplines to specialized sub-committees. Although this revision was needed to bring the student teachers' course in line with the revised primary education curriculum, its first version unfortunately proved somewhat too theoretical and thus ill-adapted to the realities of life in Haiti. This led to the preparation of a new curriculum which would support better the implementation of the Education Reform. 1/ Both colleges are operating in existing facilities. 2/ Due to the unsatisfactory working conditions of teachers. Also see paras. 6.27-6.29, 7.23-7.25 and 8.12. - 50 - 6.23 It should be noted that the practical sessions and laboratory work prescribed in the curriculum are not always executed correctly. For instance, the new laboratories and workshops at the Port-au-Prince college are not used to full capacity owing to lack of supplies and to shortages of instructors in the practical disciplines. The library also is poorly stocked, which limits the student teachers, opportunities to engage in personal research. It is therefore clear that the project teacher-training colleges would benefit if their annual operating budgets were increased. 6.24 Faculty. All 51 faculty members possess the required academic qualifications but do not appear to have received any professional training as teachers; while they are specialists in their particular disciplines, they give classes only part-time in the colleges and they are inclined to use the more conventional methods of instruction. The primary recommendation would be to maintain the same recruiting standards, but to provide supplementary university-level training at the Ecole Normale Superieure or the Faculty of Education Sciences. This recommendation is currently under study by DEN. 6.25 Application Schools. The only project application school currently in existence is on the campus of the Teacher Training College in Port-au-Prince. It has been renovated and equipped from the proceeds of Credit 618-HA. In Gonaives, a primary school to be used for teachers' practice purposes will be built at the same time as the Teacher Training College with financing from Credit 770-HA. No such school was planned for the Cap-Haitien Teacher Training College, since the Vaudreuil district, the actual location of the College, is already well served by several primary schools.1/ DEN, in conjunction with its school mapping study, is taking steps to formalize the use of these primary schools for teaching practice purposes. 6.26 The application schools serve as laboratories for student teachers. It follows that if they are to reflect the philosophy and objectives of the Teacher Training Colleges, they must be linked to them functionally, which is not yet the case. There is still some lack of coherence in the joint objectives of the two schools, due to failure to describe their respective tasks with the necessary precision. It would therefore be advisable to define clearly the administrative status and educational role of each kind of institution. 6.27 The Role of the Teacher Training Colleges in Implementing the Educational Reform: The success of the Educational Reform depends to a large measure on the training given by the teacher training colleges. According to the Second Five-Year Plan (1976-1981), an estimated 700 additional teachers a year would be needed in Haitian schools, 300 of them to come from the teachers colleges built as part of this project--i.e. 240 after a regular three-year cycle, 60 after an accelerated training course--and 400 from other teacher- training institutions. Estimates for the Third Five-Year Plan (1982-1986) put the figure at 1,200 teachers a year for the public schools alone and at approximately 3,000 for public and private schools together. However, the graduates from all teacher-training institutions in the country number only 450 a year, obviously too few. If the need for qualified teachers is to be 1/ On the initiative however, of the services responsible for coordinating teacher training matters, and with IDA approval, it has been agreed that a primary school of the Second Project will be relocated in order to serve as application school for this Teacher Training College. - 51 - met, the Government should examine all aspects of the teacher training problem in depth, concentrating on the potential for increasing the enrollment capacity of existing colleges or founding new ones and on improving working conditions for teachers. 6.28 With a view to retaining teachers in the school system and attract- ing new candidates with acceptable qualifications, the Project, through technical assistance provided in the sphere of education administration, cooperated in the drafting of a Statut de 1'Enseignant. The Government should examine this document--discussed and amended within the context of Credit 770-HA --and ensure its provisions are implemented as budgetary and financial resources allow. 6.29 Four commissions have been appointed by the Directorate-General of Education as a step toward solving the various problems of a pedagogic nature affecting the teacher training system. They have been meeting since February 1982 to discuss: a new profile of the student teacher; the training provided by the teacher training colleges (i.e. the curricula followed in application schools and the colleges themselves); training for college faculty members; and the physical facilities of the colleges. Administration of the Education System 6.30 Merging of the Two Education Systems. For a long time the Haitian school system was divided into two systems: urban (the responsibility of DEN) and rural (the responsibility of DARNDR). There was never any coordination between them, in either administrative or pedagogic questions and curriculum design. 6.31 This state of affairs was hardly conducive to implementation of the concept of a single education system as an instrument of development, put forward in the earlier studies on education reform undertaken by the Government with project assistance. A common curriculum 1/ facilitates the merging of the two systems into one, a change effected by the Decree of March 7, 1978, which made Haitian education as a whole the responsibility of DEN. That was the first step, and an indispensable one for education reform throughout the country. The underlying intentions were to: - foster a community effort for national development and ensure economical use of the resources brought into play to improve the conditions of life in Haiti without discrimination based on social origin or geographic location; - Provide equal opportunities for all Haitians in which to develop their individual potential and secure their social advancement, through similar school curricula and education methods followed by all teachers, who themselves have received the same training; - Bring uniformity and consistency into the administration, supervision and evaluation of schools, whether public, private or run by religious or missionary orders; and - Plan and apply at all levels and throughout the territory of the Republic an education policy designed to enhance and expand the nation's economic resources. 1/ Prepared under the project. - 52 - 6.32 The Organic Law. One of the objectives of the Project was to coordinate all education programs and improve the management of the education system. To that end, the project provided DEN with technical assistance in the field of education administration. This resulted in DEN's drawing up draft legislation, which, in an amended form, became the Organic Law of September 18, 1979. 6.33 The intent of the Law is to modernize DEN administration, ensure proper coordination and strengthen its planning and evaluation functions, thus bringing coherence to the activities of its various agencies and divisions. The Law also provided for a structural reorganization of DEN and a better distribution of functions. 1/ 6.34 The Reform. The plans for education reform, which are global in scope, involve such major areas as curriculum development, preparation of teaching materials, and teacher training. . 6.35 The first step in drawing up draft reform plans was to set up the Curriculum Committee, financing for its activities being provided under both Credit 618-HA 2/ and 770-HA. Since October 1981, the Committee has been funded out of the national budget. 6.36 The work of drawing up new curricula revealed the need for a Teaching Materials Production Unit. Initially established under the project, 3/ it was expanded under Credit 770-HA in conjunction with the UNDP/UNESCO Haiti Education Project. 6.37 The project also financed refresher training programs 4/ for educators already in service as a means of preparing them to cope with the innovations to be introduced in the reform process. Training and refresher seminars were therefore organized as shown by the following table: Table VI.3: Participants in Staff Training Seminars ONAAC School Inspec- Coordi- Princi- CEF CINEC DATE/DURATION tors nators pals Teachers Agents Agents Location 21 Sept. 1978 21 3 18 36 18 -- Docine St. Martin 11 days GONAIVES 20 Aug. 1979 14 - 29 115 29 20 Ste Philomene 20 days CAP-HAITIEN 15 Sept. 1980 15 - 23 98 26 24 Ste Philomene 20 days CAP-HAITIEN TOTAL 50 3 70 249 73 44 1/ See Appendix, Note 12. 2/,3/,4/ Financing of these activities was not originally included in the project. IDA decided their financing from technical assistance funds during project implementation (see Appendix, Note 8). - 53 - 6.38 The positive results of this seminar program is demonstrated by the fact that virtually all the participating teachers are currently working with experimental classes. 1/ It also appears that their methods of instruction are better than those used with conventional classes. Thanks to financing under Credit 770-HA, the seminars are continuing, while the IPN general plan envisages that they will be introduced universally with proceeds from the Proposed Third Project. It is recommended, nevertheless, that an evaluation of the refresher seminars organized so far be undertaken before introducing them on such an extended scale. 6.39 Creation of a Mobile Supervision Unit. This came into being on January 3, 1979--with financial support from the project--at a moment when the first newly built project schools required frequent visits to ensure they were being organized in a rational fashion. Consisting of an education specialist, two assistant psychologists, a physician and a sociologist, the unit was commissioned to assist the local District Inspectors with the organization and monitoring of school activities. At a later date, an IPN specialist in the psychology of education was brought in. 6.40 The Unit provided very valuable assistance during the early stages of advance testing of the curriculum (Grade 1), especially in resolving administrative and technical problems as they arose and in summarizing data on body measurements, mental development and health. It also wrote up the initial records on the children involved in the experiment, this being the initial step in introducing the system of individual progress data cards. 6.41 Unit members also took an active part as facilitators in seminars on: recruiting, individual progress data cards, entry and exit profiles, family background, distribution of teaching materials, area community study and other matters that were related to the success of the project. Given their impact on both the teachers of the experimental classes and their students, these activities contributed largely to the progress made at the initial stage of the reform. 6.42 The Unit ceased its activities in the schools once the majority of inspectors had attended refresher courses and the Regional Pedagogical Centers (CPRs) were able to provide schools with the necessary specialized assistance. Its members were assigned to other tasks such as training and curriculum design. 6.43 Elimination of the CEP. One of the preparatory measures for the reform process was elimination of the CEP, the examination that had marked the end of primary studies; since the new concept of basic education calls for ten years of schooling, which include the old first cycle of secondary education, the examination was no longer necessary. This measure is expected to keep more students in the school system and ensure easier passage into the third cycle of basic education (years 8, 9 and 10). 1/ See Appendix, Note 13. - 54 - Links between the First and Second Projects and Prospects for a Third Project 6.44 The project materialized at a moment when a need for change and improvement was felt throughout the education system. It succeeded in promo- ting the idea of reform and bringing together a group of competent, enthusiastic Haitian officials who had the courage to propose and initiate the first innova- tions. It should also be emphasized that they had the support of a well- qualified group of technical assistance personnel who accepted the idea of reform and worked for it with conviction. The great contribution of the Project was that it served as a catalyst and thus drew attention and gave credence to the need for a reform of the Haitian education system. 6.45 It then seemed perfectly logical that a second education project should be organized to provide essential support for the activities launched in the course of the Project, which had taken on certain dimensions, parti- cularly in the spheres of curriculum development, teacher training, and the creation of teaching materials. The current situation is that the programs already set in motion by DEN, need the reinforcement that would be made avail- able by a Proposed Third Project, carrying on where Credit 770-HA leaves off, and designed to consolidate all the streams of action required for the general development of the education system. - 55 - VII. CONCLUSIONS AND RECOMMENDATIONS Overview 7.01 Except for a number of slight modifications, the physical component of the project was completed with a 30% time overrun and a 20% cost overrun. The cost overruns were caused by the delay in programming construction, a shortage of counterpart funds and failure to assess project administrative and implementation costs accurately. 7.02 The project launched a series of activities in the sphere of education, breaking ground for the Education Reform, actual implementation of which is supported by Credit 770-HA and is expected to be reinforced by the Proposed Third Project. 7.03 The project also provided assistance for the coordination of educational activities undertaken by different administrative agencies (DEN, DARNDR, ONAAC); and led to the integration of all these activities under the control of DEN alone. At the same time, the administrative depart- ments within DEN, indispensable in implementing the Education Reform, were restructured (Organic Law). Project Formulation 7.04 At the time of appraisal, the emphasis was on the physical compo- nents; eventually, however, IDA agreed to provide the necessary financial support for drafting of new curricula, production of teaching materials and training of personnel. IDA's decision to give the proper degree of attention not only to the physical and quantitative side of such ventures but also to their educational and qualitative aspects is obviously highly commendable. 7.05 In formulating future projects that involve the design of new curricula and teaching materials, the training of teachers and the qualitative improvement of other aspects of education, serious thought should be given to the following factors: length of time necessary, qualified personnel, institutional framework and financial resources. 1/ Project Execution 7.06 Sites. Difficulties were encountered in acquiring sites for the urban primary schools and the teacher training colleges. In future projects, the recommendations arising out of the school mapping exercise ought to be followed with regard to necessary urban sites and to those in certain rural areas likely to present problems. Possession should be taken of sites as early as possible so that there is no doubt of it at the stage when decisions are being made on project content. 1/ The Borrower did not find it possible to produce the new curricula and learning materials within the life of the project, as it was expected to do. - 56 - 7.07 Building Plans and Consultant Firms. Except for some minor short- comings, the plans prepared by the consultants were generally good. However, replication of the standard primary school plans finally proved costly. In future, the services of consulting firms should be used essentially for the study of special schools and certain specific tasks such as the upgrading of plans that are to be used repeatedly. Upgrading of that type should be based on systematic analysis of buildings put up under earlier projects financed from various sources, and the aim should be to focus on simple construction methods and increase the use made of such local resources as stone, bamboo, clay, etc. 7.08 Civil Engineering Works. Rural schools, because of their small size and remoteness from other centers, proved very costly to build and troublesome as far as procurement and contracts were concerned. Construction in their case should be based on: (a) bulk purchase of materials (cement, steel, timber, etc.) and certain components (roofing elements, doors, windows, etc.); (b) warehousing facilities that allow rapid distribution of materials to building sites; (c) availability of specialized engineers and architects to manage primary schools' civil works and specialized entrepreneurs to maximize the use of local unskilled labor through basic crash training programs. 7.09 Supervision of Civil Works. Although the supervision of these works was estimated at a figure of 7% of their cost, the remoteness of the primary schools and the slow rate of construction work made it impossible for the supervising firms to carry out their task,in an appropriate fashion. The cost of effective supervision proved to be a higher-than-estimated proportion of the total cost of the rural schools. Supervision of rural school construction should be made the direct responsibility of the Project Unit. The recruitment of resident supervisors for groups comprising an average of five schools seems essential to guarantee proper monitoring of the construction work on rural schools as well as certain urban schools. 7.10 Accommodations for Teachers. The accommodation facilities attached to rural schools have not been used to full capacity by teachers and their families, but rather as dormitories by teachers who spend almost all their weekends elsewhere. The use made of these facilities should be monitored carefully in order to ascertain whether in future simple dormitory accommoda- tions for use during the school week would not be more appropriate than conventional dwellings. 7.11 Equipment and Furniture. All the schools have been provided with a minimum of necessary equipment, although some are still without their full complement of furniture. As far as the teacher training colleges are concerned, their libraries are very poorly supplied with books, and there is a lack of consumable items and equipment essential to the teaching of practical subjects. These institutions should be given increased allowances to cover yearly overheads. - 57 - 7.12 The design and manufacture of school furniture was not organized with any thought for rational utilization of materials or transportation. It should be designed for simple manufacture, easy storage, economical transportation and assembly (using ordinary tools) at the schools if possible by teachers and members of the community. An attempt could also be made to organize its manufacture in towns close to project areas so that transporta- tion costs can be cut. 7.13 Financial Questions. In the appraisal report estimates, project administration costs include only selected expenditures, so a substantial part was not taken into account. In future Projects, appraisal estimates should cover all such expenses, so that the total counterpart contribution would be represented by a realistic figure. 7.14 There were considerable delays in disbursing counterpart funds. Disbursement schedules for future projects should be prepared in a realistic manner reflecting the availability of counterpart funds 1/, as a means of avoiding the impact and effects of inflation. 7.15 The slowness of the reimbursement process also affected project implementation. In order to streamline the whole arrangement, the following is advised: (a) the Government should simplify the present procedures for reviewing withdrawal application; and (b) IDA should open a special account with the Central Bank so as to expedite reimbursements. 7.16 The Project Unit, which executed the project, is currently in the course of implementing Credit 770-HA. However, it would need to be strengthened for implementation of the Proposed Third Project, particularly if it is to evolve along the lines envisaged by the Government--i.e. into a directorate within DEN responsible for execution of all school construction programs in accordance with standard criteria. 7.17 The same unit should also be responsible for the organization of school building maintenance services on a national scale. 7.18 IDA Activities during Project Execution. IDA supervision missions were well timed and very useful, paying as much attention to the physical as to the educational components of the project. Regarding the latter, IDA demonstrated the flexibility of its procedures by providing support for the establishment of the institutional structures essential to the development of the new curriculum and teaching materials when the financial assistance expected from other international agencies was not forthcoming. The financing made available for such activities, and for in-service teacher training, will be continued as a component of Credit 770-HA; as far as the Proposed Third Project is concerned, it would be a reinforcement. This significant support from IDA for the promotion of qualitative improvements was an important element in preparing the framework for the Education Reform. 1/ A detailed timetable covering the whole project should be agreed upon while appraising new projects. Such a timetable should be accepted formally by the Ministry of Finance. - 58 - Educational and Administrative Aspects 7.19 The Two-Shift System. With a view to increasing the possibilities of access to schooling, reducing overcrowding in classes (in project schools as well as in other public schools) and achieving better utilization of all the existing facilities, the government should seriously consider expanding the double shift started in some project schools; giving teachers additional compensation or some other incentives and organizing a campaign to persuade parents and students to accept the system. 7.20 The two-shift system could be used with children who are over-age and therefore able to follow a more accelerated program than is currently provided in primary schools. 7.21 ONAAC Programs. The number of beneficiaries under the ONAAC programs conducted from the project schools is barely 50% of the projected figure. I/ The programs are adversely affected by a shortage of personnel and a lack of interest on the part of both teenagers and adults. No statistical data are available on the number of students who complete the various courses offered (the three-year domestic science course, in particular) or on students' level of schooling. ONAAC would benefit from an evaluation of: (a) the objectives, appropriateness, efficiency and level of its training programs; and (b) its staff arrangements. 7.22 The CINECs. Given the special circumstances existing in Haiti, these centers have provided valuable community services in the spheres of nutrition, mother-child hygiene and pre-school education. They should be provided with all possible assistance in promoting and extending their activities. 2/ 7.23 Teaching Staff Needed. On completion of the project, approximately 300 qualified teachers were to have graduated from the three teacher training colleges. In 1982, only 74 new teachers will graduate, obviously fewer than needed to fill the vacancies in the various regions. The teacher training colleges will not be operating at full capacity for another three or four years. In view of the shortage of teachers, it would seem that the teacher training institutions should have priority in the building program. Instead of having been relegated to its third phase, they should have been included in the first phase. 7.24 According to estimates in the 1981-86 Five-Year Plan, public-sector schools will require 1,200 teachers annually, while public and private schools together will require approximately 3,000. The shortage of teachers poses a serious problem for DEN, and one which calls for solutions that are geared to: (a) the potential enrollment capacity of both old and new teacher training institutions; 1/ See Appendix, Note 10. 2/ See Appendix, Note 11. - 59 - (b) improving working conditions for teachers so that the number needed to implement the reform program are attracted to, and persuaded to remain in the profession. 7.25 With IDA technical assistance provided through the project, a study was conducted and recommendations made on the means of improving teachers' working conditions. It is now up to the government to use the data compiled in the course of that study in implementing the Statut de 1'Enseignant. 7.26 Teacher Training Colleges. Despite a favorable reaction to the IDA recommendations--put forward in 1976, early in the project execution process--that a common curriculum be followed in both urban and rural teacher-training institutions, there has been no substantial modification of their traditional style, which remains quite theory-oriented. There still seems to be no functional links between them and the application schools, when the latter could in principle provide the necessary arena for experimentation and facilitate the application of modern methods of instruction in the colleges themselves. As recently as February 1982, DEN appointed a commission to examine the different facets of the teachers colleges: faculty, student-teachers, curricula, application schools and physical plant. The recommendations expected will indicate how the work of these institutions can be improved. 7.27 Seminars. The project provided financial support for the organi- zation of a number of seminars for school teachers, principals, inspectors and Teachers College faculty members to acquaint them with and prepare them for the proposed Education Reform. 1/ These seminars will continue to receive funding under Credit 770-HA, assistance which is expected to be intensified under the Proposed Third Project so that primary teachers in all public and private schools may have access to them. However, before use is made of them on a far wider scale, these seminars should be subjected to an evaluation designed to measure their impact on the daily work of participating teachers. Introduction in the schools themselves of the lesson-content and instruction methods promoted through these seminars will generate data that can be used in modifying and improving them. 7.28 Administration of the Education System. A group of government agencies with responsibilities in the field of education (DEN, DARNDR, ONAAC) received financial and technical support under the project for coor- dination and integration of some of their activities; the project support was stepped up after the merger of the urban and rural school systems in 1979 and focused on creation of the structures that were to form the basis for curri- culum development, preparation of teaching materials and organization and conduct of the seminars for school teachers, principals, inspectors and Teachers College faculty members. IDA assistance through the project and Credit 770-HA with the creation and functioning of such structures proved of extreme importance during the crucial period when the Education Reform program was being prepared. The Proposed Third Project has been specifically designed to help the Government carry the reform into all basic-cycle schools, both public and private, throughout the country. 1/ See Appendix, Note 13. Also, see compliance with credit covenent 3.05 (Annex 1). Targets for the Appointment of Qualified Teachers have been exceeded in actual implementation. - 60 - 7.29 By virtue of the technical assistance that the project channeled to DEN, the Organic Law was drafted and came into force in 1979. This legislation serves as the foundation on which the education system is to be restructured, by providing for an overall increase in quality and for the adoption of administrative and evaluation procedures that affect the entire system. I/ In principle, therefore, the Proposed Third Education Project is expected to make available to the government the support it will need in meeting such financial and other constraints which might jeopardize the steps already taken toward a renewal of the Haitian education system. 1/ See Appendix, Note 12. - 61 - VIII. IDA'S CONCLUSIONS AND RECOMMENDATIONS 8.01 The mission fully endorses the view expressed in the Borrower's Completion Report that the programs, already set in motion by DEN with the initial assistance of this project and the subsequent support of Credit 770-HA, need reinforcement and consolidation, toward which the proposed Third Project is expected to contribute. 8.02 In the future, the cost of projects should be estimated taking into account all expenditures, including project management and, if necessary, the cost of sites or facilities to be acquired. This would give a reliable basis for determining the proper overall financing by the Bank Group and give th Borrower an opportunity to include in the budget all funds (para 5.01) needed to cover in due time the yearly allocations of counterparts funds. 8.03 Similarly, all the operational costs should be calculated accurately at the time of appraisal. Operational expenditures related to a project investment activity, e.g., the operational costs of the Project Unit, are only temporary and should be taken into account in the project financing (para 5.14). 8.04 Financing of recurrent costs (as proposed in para. 5.14) is the Borrower's obligation. However, their size should be such that the Borrower can meet this obligation, and IDA might consider financing some of them initially, gradually reducing its contribution so that, by the time of project completion the Borrower is fully responsible (para 5.14). 8.05 Cost overruns were probably the most difficult problem affecting the Project. Cost monitoring was not carried.out systematically by the Project Unit, and the Problem had become serious when it became clear that it existed. Approval and release of additional counterpart funds by the Government caused major delays in project implementation. For future projects, systematic and early monitoring of the costs and the financial situation is required, e.g., as part of the Quarterly Progress Reports. This would enable early action such as, e.g., reductions in the scope of the Project when cost overruns do occur. Experience also showed that audit reports are not a good vehicle to monitor the costs and financial situation - they usually arrive too late (para 5.01). 8.06 One proposal (para. 5.08), strongly supported by the mission, would be to increase the percentage of IDA's local cost financing, e.g., as proposed for the Proposed Third Project (para. 5.08). Another, equally supported by the mission, is to establish a special account at the Central Bank with the proceeds of the IDA Credit and to streamline Haitian procedures for approving contracts and reimbursement applications (para. 5.12). 8.07 Compared to appraisal estimates, some project institutions are not used as agreed at appraisal. The social pressure in the rural areas for more school places has led to overcrowding in the project primary schools which is not conducive to the implementation of the Education Reform. At the same time the enrollments, when all schools are completed, are expected to be below the appraisal estimates because of resistance to the use of the shift system. - 62 - While some recommended that the shift system be implemented under the Project (and in Credit 770-HA) without an in-depth investigation. However, there are divided views among the Haitians about the use of the shift system. While some recommend the double shift, others recommmend that rural schools should have more classrooms than the present ones (4) to accommodate the school age population in one single shift. There are also those who object to the use of the same team of teachers for both morning and afternoon sessions as too tiring. The Government has to clarify its policy on this matter (paras. 6.04-6.06). 8.08 In comparison with appraisal estimates, there is also underutiliza- tion of the project primary schools with regard to the ONAAC programs. Either the appraisal overestimated the popularity of these programs, or the young persons and adults have, for various reasons, lost their interest in those programs. The matter deserves, as the Borrower's Completion Report argues, further investigation because, the underutilization may lead, among other things, to modifications of the size of future schools (para. 6.14). 8.09 Serious delays in the completion of the project teacher training colleges resulted in a meager output of graduates--74 compared to the appraisal estimate of 240/300--quite insufficient to meet the increasing demands of primary education in qualified personnel. The shortage of qualified teachers has been accentuated by the small output of the nonproject teacher training colleges, which did not receive the expected foreign assistance required for their improvement and expansion. The most disturbing factors are: (a) the inability of the colleges to attract candidates with the required academic qualifications; and (b) the inability of the education system to keep them after their graduation, because of low remuneration. The Borrower's Completion Report indicates the serious concern of the education authorities which have set up committees to study all the aspects of the teacher training colleges; but the Report is also very pragmatically correct in urging the Government to promptly accept and apply the Teachers' Charter (Statut de l'Enseignant) (paras. 6.27-6.29). 8.10 To utilize properly the faciities provided by the project, adequate operational funds for consumable and other items should be made available to the project institutions, especially the teacher training colleges. Unless the present allocations are increased, the provided facilities will not be properly utilized, to the detriment of the teachers' and students' work. 8.11 Impressive work, supported by the project whose objectives (para 3.05) were identified with those of the Education Reform, has been done in the preparation and promotion of the reform through the introduction of Creole, development of new curricula and learning materials, and the training of teachers, principals, inspectors and teacher educators, etc. It is, of course, too early to assess the impact of the above activities on the everyday work of teachers and students in the classroom. However, it is appropriate at this initial stage of the Reform to highlight some key factors which can affect, for better or worse, the work of students and teachers and subsequently the implementation of the Reform. - 63 - 8.12 The majority of students, especially those in the rural areas, have financial difficulties in acquiring the exercise books and textbooks required for their schoolwork. That means that the new learning materials, essential for the implementation of the Education Reform, have to be made economically accessible to most of the students. 8.13 At loan signing, special arrangements were to be made by the Borrower for the education of overage students (Credit Agreement, Section 3.05). A committee was set up to study this serious problem and make recommendations for appropriate action. No tangible action has been taken in this respect during project implementation. The problem of overage students is complex, involving policies of admission, promotion, special programs and appropriate teacher training. Because of the substantial number of overage students, especially in the rural areas, this problem has to be phased effectively, if the Education Reform is to be properly implemented (para. 6.12). 8.14 The most important factor in the implementation of the Education Reform is the teacher--his/her pre-service and in-service training, guidance and monitoring. Only about 25-30% of the total teaching staff have graduated from teacher training colleges. Even the training received by this minority of teachers can be considered inadequate to meet the demands of modernization of the education system. Teacher educators, school principals, and inspectors have neither the qualifications nor the means to provide adequate training, guidance and monitoring to teachers. The number of pedagogical counselors is still insufficient to reach all teachers and give them this assistance. Seminars, attended by teachers who are mostly untrained, can be of limited usefulness, unless followed up by consistent pedagogical assistance. Under these conditions, for the Education Reform to succeed, the Government has to persistently pursue and bring about improvements in the training of teacher educators, inspectors, principals and teachers (para. 6.27). Improvement in the conditions of service of all educators would also be of importance (para. 6.28). 8.15 Substantial progress has been made in institutional developments. The unification of the urban and rural education systems, the expansion of education, especially in the rural areas, and the introduction of the Education Reform necessitated the restructuring of the education system, the reorganiza- tion and expansion of the administrative services and the institutionalization of new educational services in DEN. These important changes were accomplished under Unification Law of 1978, the Organic Law (Loi Organique) of 1979 and the Education Law of 1982. The project provided active support to all these developments (paras. 6.30-6.33). 8.16 The unification and reorganization of the education system succeeded in bringing together a number of competent and dedicated Haitians who have accepted the main responsibility for the implementation of the Education Reform. The task, nevertheless, is too great for this group of people, however hardworking and dedicated they may be. Additional qualified personnel is required to staff the key services of the restructured and reorganized DEN. Training is required for education planners and administrators, developers of curricula and learning materials, teacher educators, school principals, pedagogical counselors, inspectors and educational evaluators. Such training can be provided by the establishment of an appropriately organized and staffed Faculty of Education of the University, now under consideration by DEN. As in the case of teachers, to attract and retain this qualified staff in the services of DEN, it has to provide these persons with appropriate terms and conditions of service (para. 6.34). n 1 - 65 - APPENDIX Note 1 - Credit Conditions Note 2 - Description of the Project Note 3 - Technical Assistance Provided by CONESCAL Note 4 - Consultant Architects' fees Note 5 - Civil Works Note 6 - Rural Schools Note 7 - Construction Costs of Project Schools Note 8 - Technical Assistance Note 9 - Enrollments Note 10 - ONAAC Note 11 - CINECs Note 12 - Organic Law Note 13 - Seminars  - 67 - Note 1 - Credit Conditions (Chapter III, Para. 3.06) The Credit Agreement included a number of conditions (Annex 1) to be met by the Borrower. Among those conditions were: (a) the formulation by the Borrower of a comprehensive education plan (Section 4.02); (b) preparation of a study on terms and conditions of teachers' service (Section 3.07); (c) development of common basic curricula for teacher training (Section 3.06); and (d) development of common curricula and teaching aids for primary schools (3.05). The latter (d) were expected to be developed with financial aasistance from other external sources. Because of the unavailability of this assistance, the project provided financial support from its proceeds for technical assistance for the development of primary school curricula and teaching aids, and for the training of teachers in their implementation (paras. 6.07, 6.10 and 6.37). This support now continues under the Second IDA financed Education Project (Credit 770-HA). Note 2 - Description of the Project (Chapter III, para 3.06 (a)) All construction has been placed in two geographical areas, the first includes the Nord and Nord-Est Departments; the second the Artibonite valley; in addition some construction was made, in Port-au-Prince. The two geographical areas were selected because other development projects were expected to be financed there by IDA and other development agencies, and simultaneous actions would increase the considerable development potential of these regions. (These development projects, when materialized, were limited in scope, and this slowed the rate of development of the regions). Port-au-Prince was selected because it needed to increase primary education opportunities in disadvantaged urban areas and because some small and dispersed teacher training colleges had to be consolidated into one. Note 3 - Technical Assistance Provided by CONESCAL (Chapter IV, Para 4.12) Although the appraisal report included one man/year of technical assistance for project administration, CONESCAL provided technical assistance to the Project Unit during short missions under a contract limited to 120 man/days (equivalent to 6 staff/months), which was carried out in about one year (April 1976 to April 1977). CONESCAL discussed during six missions 1/ preparation of designs, school mapping, standards for academic facilities and furniture. Conclusions of each mission were condensed in minutes intended to serve as guidelines. CONESCAL's main achievements were: (a) preparation of architects briefs for teacher training colleges, (b) basic layouts for classrooms and workshops of primary schools and all accommodations for teacher training colleges. CONESCAL's inputs were not fully assimilated for the following reasons: (a) the limited time of technical assistance missions with the project Unit, (b) the only counterpart was the project director who added this function to his already heavy workload, (c) consultant firms' lack of interest in cooperating with CONESCAL. 1/ In addition, there was a preliminary mission in which contract terms were established. - 68 - Note 4 - Consultant Architects' Fees (Chapter IV, Para. 4.20) Based on information collected in the field by the appraisal mission, the following fees were established: Design: 4.5% of the appraisal estimate construction costs taking into account that the approved set of working drawings would be utilized for all 65 rural schools (except foundations and site plans). To some extent, this concept was applied for urban schools and Teacher Training Colleges. Soil testing and land surveying services were included under design. Supervision : Local information about supervision was limited, fees were estimated at 7% of construction contracts. The reasons for this distribution are: (a) the repetitive use of most working drawings in 65 rural and 10 urban primary schools; (b) field supervision of rural schools was expected to cause substantial expenditures in regard to transportation; and (c) supervision of rural schools was expected to require unusually long travel time, due to bad road conditions and dispersed site locations. The following factors affected professional services and made fees inadequate: (a) the number (3) of firms engaged; and (b) time overrun in project implementation. Compensations foreseen in the contingency allowance table were not applied because of the questionable quality of supervision services. The Project Unit discarded the idea of defining how the contractor and the Project Unit should share the payment of any supplement to the original amount of the fee. Note 5 - Civil Works (Chapter IV, Para. 4.26) During negotiations it was agreed that prequalified contractors be invited through local advertisement. There was also flexibility in civil works bidding, described in the Credit agreement as "competitive bidding in accordance with procedures acceptable to the Association." The Project Unit tried to counterbalance its initial inexperience by inviting and pre- qualifying some foreign contracting firms which would be able to construct all 65 rural schools (US$2.7 million). However, bids from those firms were not competitive because they included substantial overheads. Prequalification of civil works contractors followed methods provided by CONESCAL which had been successful in other countries. However, due to the lack of previous experience in Haiti, the capability of construction firms was unrealistically overestimated. For tendering on phases 2 and 3 PIU tried to resolve this problem by assigning less amounts of work to each firm, but practically all firms failed to complete their contracts: they were unable to organize the construction of rural schools effectively. Problems that developed with contractors in 1979 (para. 4.28 and 4.29) created an emergency situation which the Borrower resolved by utilizing the force account method; by that time the managing capability of the PIU had improved sufficiently so as to undertake such responsibility. Thus, experience shows that construction of rural schools should be approached in a more flexible and innovative way, whether contractors are utilized or not; prequalification is not the only solution. - 69 - Note 6 - Rural Schools (Chapter IV, Para. 4.27) Force Account Based on significant achievements of similar construction program of rural achools undertaken since 1960 by Mexico and Peru, which operate smoothly by utilizing systems of standardized building components under force account methods, the appraisal mission explored, but abandoned the possibility of constructing project rural schools under a simplified force account method. This happened because (a) the existing professional staff available in the Ministries of Education and Agriculture consisted of only two civil engineers with practically no support staff; and (b) available time was insufficient to organize or train a realiable management team within a four year implementation program. Potential benefits from the force account method in constructing rural primary schools would be: (a) procurement of most materials and building elements e.g., roof trusses and roofing would be handled directly by the Project Unit. This would generate savings by minimizing overheads and financing charges that each general contractor necessarily would have to include; (b) no advance payments for mobilization would be required; (c) size of packages would be arranged in a flexible manner so as to allow for a good utilization of supervising engineers; (d) overheads on labor would be drastically reduced because small entrepreneurs would be engaged directly; and (e) construction periods would be shortened through the direct control and provision of construc- tion materials by the Project Unit. Costs The Borrower's analysis of cost increases does not take into account the modifications made to the project scope. The number of originally appraised project institutions, and the area of construction envisaged at appraisal have been changed (see table in note 7). - 70 - Note 7 - Construction Costs of Project Schools (Chapter IV, Para. 4.30) Appraisal estimated and actual construction costs of project schools are presented in the following table: % per Appraisal Report Actual School Cost Cost Quantity (Inci. CTG.) Quantity US$/000 ACT/APP US$/00 Schools Class Total a/ Per Class Total a/ rooms Area Total School Schools rooms Area Total School Primary rural 65 260 29,055 1729.7 12.00 65 260 31.622 50.8 0.73 Schools (4 classrooms) 97 Primary urban 8 48 3.888 420.0 52.50 4 24 2.914 189.1 42.7 schools (6 classrooms) 90 Primary urban 2 24 1.672 180.6 90.30 3 36 4.257 281.9 93.96 schools (12 classrooms) 104 SUB-TOMAL - - 34,615 2330.3 - - 38,793 3,121.8 119 b/ Teacher Train- ing Colleges 3 N.A. 5,614 a/ 663.1 221.1 c/ 3 N.A. 7,512- 1,215.9 405.30 183 TOfAL 78 332 40,229 3993.4 75 318 46,305 4,320.7 Coat Overrun 327.3 or 8.2% a/ New constructions only. b/ Variation of unit cost (per m 2) of the primary schools. c/ Total costs, including improvements of existing buildings. - 71 - Note 8 - Technical Assistance (Chapter IV - Page 28) The Composition of the technical assistance component (specialist services) changed over the life of the project as new needs arose. As indicated in the Table below, of the 84 staff months of specialist services estimated at appraisal, only 58.5 staff-months were used. Technical Assistance (Specialist Services) Estimated Actual (staff-months) (staff-months) Teacher Training 24 15 ONAAC 12 9 Vocational and Technical 12 6 Education Subsector Studies 24 Statistics 9 Educ. Administration 13.9 Project Unit (CONESCAL Missions) 12 6 TOTAL 84 58.5 The remaining project proceeds from technical assistance were allocated to other educational activities -- curriculum development, learning materials, teachers' seminars, etc. -- which had direct bearing on the initiation and implementation of the Education Reform (paras. 6.07, 6.09, 6.37 and 6.39). This flexibility in selecting specialties and the calibre of the specialists, mentioned in paras. 4.46 and 4.50 ensured that the technical assistance program made a favorable impact on the development of the education system. Should counterparts had been always available, this impact would have been more beneficial. - 72 - Note 9 - Enrollments (Chapter VI, Para. 6.02) The following provide a comparison between appraisal eatimates and actual data of primary schools. Estimated and Actual Enrollments and Teacher: Student Ratios Enrollments in National Enrollments Teacher: Student Ratios project primary schools Estimated a/ Actual b/ % Estimated Actual Estimated Actual Pub. Schools (80-81) (79/80) (80/81) (79/80) only (79/80) Rural 17,400 18,787 104 240,000 304,400 1:60 1:51 1:73 Urban 5,400 2,795 52 230,000 275,700 1:35 1:37 1:42 TOTAL 22,800 21,582 92 470,000 580,100 a/ Based on double shift, increasing enrollments by one-third in the rural areas and 80% in the urban areas. b/ Only 2.4% of total enrollments are on double shift. Enrollments surpassed the estimated ones in the rural areas without the use of double shift. However, in the urban areas actual enrollments are about half of the estimated ones, and a double shift was used only in very rare cases (2%). Double shift does not seem to be very popular among parents and teachers, and the position of the MOE seems to be rather ambivalent. The enrollments of the project schools, represent about 12% of the public primary school enrollments of the regions affected by the project--about 17% of rural enrollments and nearly 4% of urban enrollments. These enrollments also represent about 7% of the national public primary school enrollments--or about 3% of the total enrollments in both public and private primary schools, compared to about 5% of the appraisal estimates (1980/81). This percentage was not reached because of lower actual enrollments, amounting to 92% of the appraisal estimates. Compared to the appraisal estimates for 1980/81 (470,000), the national enrollments for 1982/83, when all the project schools will be in operation, are estimated at nearly 660,000. This rapid increase has seriously affected the teaching situation in the rural areas, where the teacher student ratio continues to be very high (1:73). - 73 - Note 10 - ONAAC (Chapter VI, Para. 6.11) (Chapter VII, Para. 7.21) According to ONAAC, young men are interested only in vocational training for which there is no equipment in the project schools. Young girls' programs are confined to day classes. The school facilities were expected to be used by ONAAC for adult programs in the evenings. No such programs take place, either because of lack of demand or because of limited staff and resources. ONAAC staff already suffers from a high attrition rate, due to low remuneration. There are also no indications regarding the effectiveness of the programs offered by ONAAC. All the above factors may explain the low enrollments of the ONAAC programs, compared to the appraisal estimates. An evaluation of the ONAAC programs, advocated by the Borrower's report seems to be warranted. Note 11 - CINECs (Chapter VI, Para. 6.15) (Chapter VII, Para. 7.22) All CINEC centers are located on the premises of the project schools. The centers were constructed with community participation. CARE is involved in the selection, training and supervision of instructors, as well as in the development of a pre-school curriculum and the selection of children. The five-year olds enrolled in the center automatically become the experimental first grade class of the project school. Collaboration between the staff of the project schools and that of CINECs is very close. CINEC staff shares the staff accomodations provided by the Project. CINEC staff has also benefited from seminars organized and financed under the project (para. 6.37). The proximity between project schools and CINECs has encouraged the undertaking by CARE of an experimental pilot program aimed at studying the combined results of early nutrition intervention and schooling. In appreciation of the valuable work performed by CINECs, DEN has now recognized pre-school education as part of the formal education structure. The expansion of CINEC's continues during the Second Education Project (Credit 770-HA) and should be encouraged to continue during the Proposed Third Education Project. Note 12 - Organic Law (Chapter VI, Para. 6.33) (Chapter VII, Para. 7.29) The old structure of education was based on a strict division of levels and types of education (i.e. primary, secondary, vocational, youth and sports). This administrative arrangement was considered to encourage a narrow departmental outlook and approach to educational problems. The new organization, established by the Organic Law, focuses on five general functional divisions of the education system: planning, education, inspection and educational guidance personnel and administration. This arrangement is intended to facilitate flow of information within and among the divisions, and to promote the formulation of comprehensive policies and objectives, and their implementation, and monitoring and evaluation. - 74 - Note 13 - Seminars (Chapter VI, Paras. 6.37 - 6.38) (Chapter VII, Para. 7.27) The importance of the few seminars, organized under the project, irrespective of the number of participants, is that they initiated the Education Reform. Principals and teachers, more than 80% of them qualified, were trained through these seminars to start the operation of the project schools and also the experimental testing of the new curricula and learning materials. Their experimentation provided DEN with some basic observations which led to needed modifications and revisions of the new curricula and learning materials. Also, through these seminars, about half of the primary school inspectors became acquainted with the general objectives and the implementation aspects of the Education Reform. - 75 - ANNEX 1 Page 1 of 3 HAITI Credit 618-HA First Education Project Covenant Compliance 3.01 (b) To establish and maintain a Project Complied with; changes in adminis- Unit, with such powers and responsibilities, tration from CONADEP to DEN; and personnel and resources as stated in Schedule 4 also changes in staffing approved of the Credit Agreement. by IDA. 3.01 (c) To take the following administrative Complied with. measures: (i) establish and maintain a project account; (ii) deposit in the project account the anticipated total expenditures for the first quarter; (iii) replenish from time to time amount of the project account; and (iv) deposit in the project account all reimbursements with- drawn from the project account. 3.02 To employ architectural consultants accept- Complied with. able to IDA. 3.03 To establish within six months of the date Complied with. of the agreement technical committees, which should include qualified representatives from Ministries of Agriculture and Education, with duties as set forth in paragraph 5(b) of Schedule 4 of the Credit Agreement. 3.04 (a) To employ Technical Assistance Complied with. Specialists acceptable to the Association; and (b) To select appropriate candidates for the fellowship program. 3.05 For primary schools: Complied with, but not fully (a) To make facilities available for utilized by these organizations. community programs organized by ONAAC or Departments of Public Health and Population and Social Affairs; (b) To introduce reformed common Complied with; all project schools curricula, and appropriate teaching are part of the experimental pro- aids for learning; gram for testing the new curriculum (c) (i) to keep the average number of and learning materials. The average students per classroom below 50; number is slightly higher in rural and areas, slightly lower in urban areas. (ii) to have, by the fourth year of operation, 50% of trained teachers Over 80% is fully qualified; all and the balance with a minimum of other teachers received additional 3 years post-primary education supple- training. mented by an intensive pedagogical training course acceptable to the Borrower and to the Association. - 76 - ANNEX 1 Page 2 of 3 Covenant Compliance 3.06 For Primary Teacher Training Colleges, the Complied with. Borrower in coordination with IPN, DEN and DARNDR teacher trainers shall: (a) Take all necessary measures to develop appropriate common basic curricula and syllabi for pre- service and in-service teacher training courses; (b) Implement these upon commencement of operation of the Project Colleges; and (c) Ensure that teachers upon graduation from these colleges are qualified and allowed to serve in both DEN and DARNDR schools. 3.07 Preparation of a study on terms and Complied with; study conditions of service, bonding and Appoint- completed in 979. ment procedures of primary teachers, with assistance of specialists. To be completed two years after the date of the Credit agreement. 3.08 (a) To contract insurance for imported Complied with. goods from origin to place of installation; and (b) Exclusive use of all goods and services financed out of the proceeds of the loan. 3.09 (a) To submit plans and all bidding Complied with. documents for IDA approval. (b) (i) maintain records on imple- mentation progress; and (ii) allow for mission's visits; and (iii) furnish information requested by IDA. 3.10 In regard to school sites: Complied with. (a) To select as and when needed, sites acceptable to IDA; and (b) To acquire all land or land rights as required for the construction and operation of the facilities included in the project. 4.01 (a) Adequate records of project Complied with. accounting; (b) (i) to have the project account Partially complied with; the for each fiscal year audited; audits for FY'79-80 and (ii) to furnish IDA with certified FY'80-81 not yet received. copies of accounting for each fiscal year; and (iii) to furnish Complied with. upon IDA's other information concern- ing the credit account and the audit. - 77 - ANNEX 1 Page 3 of 3 Covenant Compliance 4.02 (a) To formulate, no later than June 30, Complied with. 1977 a comprehensive education plan that will, inter alia, include the measures necessary to achieve the Borrower's educational objectives; (b) To review, jointly with IDA, about Complied with; plans and one year after the Credit Agreement programs reviewed and dis- date and for six years thereafter, cussed by educators during its educational reform plans and pro- missions. grams, overall policies and the availability of funds for carrying them out; and (c) To review, jointly with the Associa- Action has been taken for tion, its needs for rural primary expanding these programs teacher training programs, and as of under Credit 770-HA. June 30, 1977, take all necessary measures to expand such programs. 4.03 (a) Proper maintenance of buildings, Complied with. equipment and furniture. (b) Provide sufficient funds to meet Partially complied with. all recurrent costs required to Operational funding received operate the schools in the project. by project institutions, especially teacher training colleges, have to be increased. - 78 - ANNEX 2 Page 1 of 1 HAITI FIRST EDUCATION PROJECT (Cr. 618-HA) LIST OF PROJECT AND NON-PROJECT INSTITUTIONS VISITED BY THE MISSION Project Schools Non-Project Schools a. Teacher Training Colleges Primary Schools 1. Martissant (Urban) 1. Sanon Derac 2. Gonaives (Urban) 2. Clement Larrier 3. Cap-Haitien (Urban) 3. Elodie Lherisson b. Primary Schools 4. Gonel Coulange 1. Sans Fil (Urban) 5. St. Val Rey 2. Pivert (Urban) 6. Pont Gaudin (Rural) 3. Mapou Lagon 4. L'Estere 5. Hatte Gramond 6. Bigot 7. Savane Christ (Urban) 8. Poteau 9. Mapou Rollin 10. Robillard 11. Grison Garde 12. Duty 13. Fort St. Michel (Urban) 14. Campeche 15. Ste. Philomene 16. St. Michel 17. Petit Bourg 18. Port-Margot FIRST EDUCATION PROJECT (618-HA) DATE OF COMPLETION OF CONSTRUCTION WORK AND ESTIMATED AND ACTUAL COSTS, BY INDIVIDUAL SCHOOL Design and Roads and Soil Super- Other Phase I Stud- vision Com- Estimated Service Total No. Name of School Surveying ies Studies Contractor pleted Area Cost Actual Cost Networks Actual Cost Difference 1 Bardon Marchand Dgsuli4 M.L. B.J. M. Charles Oct. 78 486.5 30,520.00 32,892.03 5,269.00 38,161.03 + 7,641.03 2 Savane Tapion Disulme M.L. B.J. M. Charles Oct. 78 486.5 30,520.00 32,332.03 5,269.00 37,601.03 + 7,081.03 3 Moreau Drouet Dgsu1m M.L. B.J. M. Charles Oct. 78 486.5 30,520.00 31,108.14 5,269.00 36,377.14 + 5,857.14 4 Hatte Grammont Dfsu1me M.L. B.J. M. Charles Oct. 78 486.5 30,520.00 31,332.07 5,269.00 36,601.07 + 6,081.07 5 Ravine Desroches Laurin M.L. B.J. M. Charles Oct. 78 486.5 30,520.00 38,202.31 5,269.00 43,471.31 + 12,951.31 6 Chabaud Laurin M.L. B.J. M. Charles Oct. 78 486.5 30,520.00 39,398.28 5,269.00 44,667.28 + 14,147.28 7 Lacroix D su1me M.L. F.M. M. Charles Oct. 78 486.5 30,520.00 31,332.07 5,269.00 36,601.07 + 6,081.07 8 Souvenance D9sulme M.L. F.M. M. Charles Oct. 78 486.5 30,520.00 37,080.82 5,269.00 42,349.82 + 11,829.82 9 Docine St-Martin Dgsulm6 M.L. F.M. M. Charles Oct. 78 486.5 30,520.00 32,892.03 5,269.00 38,161.03 + 7,641.03 10 Mapou Rollin Desulmg M.L. F.M. M. Charles Oct. 78 486.5 30,520.00 37,084.10 5,269.00 42,353.10 + 11,833.10 11 Leroux Cachiman Laurin M.L. F.M. M. Charles Oct. 78 486.5 30,520.00 39,324.81 5,269.00 44,593.31 + 14,073.31 12 Dubourg Laurin M.L. F.M. M. Charles Oct. 78 486.5 30,520.00 39,098.31 5,269.00 44,367.31 + 13,847.31 13 Camp Louise Laurin M.L. GIA M. Charles Oct. 78 486.5 30,520.00 38,762.31 5,269.00 44,031.31 + 13,511.31 14 Dergal Laurin M.L. GIA M. Charles Oct. 78 486.5 30,520.00 33,788.03 5,269.00 39,057.03 + 8,537.03 15 Bonamy Laurin M.L. GIA M. Charles Oct. 78 486.5 30,520.00 38,504.35 5,269.00 43,773.35 + 13,253.35 16 Dilaire Laurin M.L. GIA M. Charles Oct. 78 486.5 30,520.00 39,658.31 5,269.00 44,927.31 + 14,407.31 17 Breteau Laurin M.L. GIA M. Charles Oct. 78 486.5 30,520.00 38,504.35 5,269.00 43,773.35 + 13,253.35 18 Lamatrie Laurin M.L. GIA M. Charles Oct. 78 486.5 30,520.00 40.744.35 5,269.00 46,013.35 + 15,493.35 549,360.00 652,598.70 94,842.00 746,880.20 +197,520.20 NOTE: The schools where the contractor's name is preceded by two asterisks (**) were taken over by Project Office construction personnel. Where the contractor's name is preceded by one asterisk (*), Project Office management staff had to be brought in to supervise construction. alp U FIRST EDUCATION PROJECT (618-HA) DATE OF COMPLETION OF CONSTRUCTION WORK AND ESTIMATED AND ACTUAL COSTS, BY INDIVIDUAL SCHOOL Design and Rcads and Super- Other Phase II Soil vision Com- Estimated Service Total No. Name of School Surveying Study Study Contractor pleted Area Cost Actual Cost Networks Actual Cost Difference I Terre Neuve Desutme M.L. B.J. * G. Lafontant Feb. 82 486.50 30,520.00 38,028.69 - 38,028.69 + 7,508.69 2 Ka Philippe Desulmd M.L. B.J. * C. Lafontant Feb. 82 486.50 30,520.00 38,595.61 38,595.61 + 8,075.61 3 Daranne D6sulme M.L. B.J. * G. Lafontant Feb. 82 486.50 30,520.00 38,028.69 - 38,028.69 + 7,508.69 4 Savien La Chicotte Dfsulm' M.L. B.J. G. Lafontant Oct. 79 486.50 30,520.00 35,122.50 5,269.00 40,391.50 + 9,871.50 5 Segur D4sulm' M.L. 8.J. G. Lafontant Oct. 79 486.50 30,520.00 35,236.52 5,269.00 40,505.52 + 9,985.52 6 Hatte Chevreau D6sul4 M.L. B.J. Sohico Oct. 79 486.50 30,520.00 37,088.74 5,269.00 42,357.74 + 11,837.74 7 Grand Rac DAsulmi M.L. B.J. Sohico Oct. 79 486.50 30,520.00 39,314.22 5,269.00 44,583.22 + 14,063.22 8 * Ste Philomene Laurin M.L. B.J. HAN Oct. 79 1,319.30 65,620.00 64,642.52 20,796.36 85,438.88 + 19,818.88 9 Aux Sources Desu1m4 M.L. P.M. * C. Lafontant Mar. 82 486.50 30,520.00 34,641.92 - 34,641.92 + 4,121.92 1 10 Petites Desdunes Desu1mI M.L. F.M. Sohico Oct. 79 486.50 30,520.00 38,224.42 5,269.00 43,493.42 + 12,973.42 0 11 Hatte Desdunes D6sulmi M.L. F.M. * C. Lafontant Eeb. 82 486.50 30,520.00 34,641.92 - 34,641.92 + 4,121.92 12 Rossignol Desulm'e M.L. F.M. Sohico Feb. 82 486.50 30,520.00 38,797.86 5,269.00 44,066.86 + 13,546.86 13 Latapie - Drouin D&su1i M.L. F.M. * G. Lafontant Feb. 82 486.50 30,520.00 34,912.14 5,139.94 40,052.08 + 9,532.08 14 Chevreau Lombard Disulm; M.L. F.M. * G. Lafontant Mar. 82 486.50 30,520.00 34,772.03 5,139.94 39,911.97 + 9,391.97 15 L'Est re D9sutin M.L. F.M. Sohico Oct. 79 486.50 30,520.00 36,683.23 5,139.94 41,823.17 + 11,303.17 16 Poteau DAsu1mg M.L. F.M. C. Lafontant Oct. 79 486.50 30,520.00 33,997.33 4,969.00 38,966.33 + 8,446.33 17 Mapou Lagon DAsu1me M.L. F.M. Sohico Oct. 79 486.50 30,520.00 37,237.00 5,417.00 42,654.00 + 12,134.00 18 Isidore Laurin M.L. F.M. Lauthg Oct. 79 486.50 30,520.00 36,788.70 5,280.00 42,068.70 + 11,548.70 19 * Savane Christ D;sulmi M.L. F.M. Sohico Oct. 79 1,319.30 65,670.00 71,813.62 18,325.30 90,138.92 + 24,468.92 20 Cana Laurin M.L. CIA Lauthi Oct. 79 486.50 30,520.00 37,465.27 6,493.00 43,958.27 + 13,438.27 21 Welsh Laurin M.L. CIA Lauthe Jan. 80 486.50 30,520.00 37,465.27 6,493.00 43,958.27 + 13,438.27 22 D'osmond Laurin M.L. CIA Lauthe Oct. 79 486.50 30,520.00 36,788.70 6,493.00 43,281.70 + 12,761.70 23 Leroux Pilette Laurin M.L. CIA Lauthi Oct. 79 486.50 30,520.00 36,788.70 6,493.00 43,281.70 + 12,761.70 24 Dubuisson Laurin M.L. CIA Lauth6 Oct. 79 486.50 30,520.00 36,788.70 6,493.00 43,281.70 + 12,761.70 25 Bois de Lance Laurin M.L. GIA Lauthe Oct. 79 486.50 30,520.00 36,788.70 6,493.00 43,281.70 + 12,761.70 26 Roche Plate Laurin M.L. CIA Lauthe Oct. 79 486.50 30,520.00 37,465.27 6,493.00 43,958.27 + 13,438.27 27 Belle Hotesse Laurin M.L. CIA Lauth6 Oct. 79 486.50 30,520.00 36,526.70 6,493.00 43,019.70 + 12,499.70 28 *St-Marc Pivert D6su1m; M.L. CIA HAN Oct. 79 809.36 38,160.00 41,716,71 10,147.90 51,864.61 + 13,704.61 29 Sarazin Laurin M.L. CIA Lauthg Oct. 79 486.50 30,520.00 36,788.70 6,493.00 43,281.70 + 12,761.70 962,970.00 1,133,150.38 170,406.38 1,303,556.76 +340,586.76 FIRST EDUCATION PROJECT (618-HA) DATE OF COMPLETION OF CONSTRUCTION WORK AND ESTIMATED AND ACTUAL COSTS, BY INDIVIDUAL SCHOOL Design Roads and and Super- Other Phase III Soil vision Com- Estimated Service Total No. Name of School Surveying Study Study Contractor pleted Area Cost Actual Cost Networks Actual Cost Difference 1 Dolan Desulm M.L. B.J. **G, Lafontant Mar. 82 486.50 30,520 38,000.00 - 38,000.00 + 7,480.00 2 Bas de Sault D'sulme M.L. B.J. *G. Lafontant Mar. 82 486.50 30,520 37,500.00 - 37,500.00 + 6,980.00 3 Savane A Roche Dfsu1m; M.L. B,J. **G. Lafontant Mar. 82 486.50 30,520 36,000.00 5,269.00 41,269.00 + 10,749.00 4 *St-Martin - Sans Fil Disulme M.L. B.J. RAN Oct. 80 1,618.72 76,320 82,979.50 23,443.60 106,423.10 + 30,103.10 5 Robillard Laurin M.L. B.J. *Lauthe Feb. 82 486.50 30,520 40,749.32 5,269.00 46,018.32 + 15,498.32 6 Jean Denis D6su1m( M.L. B.J. **G. Lafontant Jan. 82 486.50 30,520 36,000.00 5,269.00 41,269.00 + 10,749.00 7 Nan Guillaume D sulm M.L. B.J. *G. Lafontant Mar. 82 486.50 30,520 37,500.00 - 37,500.00 + 6,980.00 8 Trou Jean-Pierre D6sulm6 M.L. B.J. *G. Lafontant Mar. 82 486.50 30,520 37,500.00 - 37,500.00 + 6,980.00 9 Las Cidras D&sulm M.L. B.J. *G. Lafontant Mar. 82 486.50 30,520 37,500.00 - 37,500.00 + 6,980.00 10 St. Michel D6sulm' M.L. B.J. *Lauth6 Apr. 82 486.50 30,520 40,749.32 - 40,749.32 + 10,229.32 11 Fort Lagrange-Borgne D6sulme M.L. B.J. *Lauth6 Apr. 82 486.50 30,520 51,636.80 - 51,636.80 + 21,116.80 12 *Normal Martissant Desulm' M.L. B.J. Villemenay Oct. 80 1,200.20 115,720 262,884.88 275,044.90 537,929.78 + 422,209.78 13 Platon Dgsulm6 M.L. F.M. **Sohico Oct. 81 486.50 30,520 36,500.00 5,269.00 41,769.00 + 11,249.00 14 Grison Garde Laurin M.L. F.M. *Lauthe Feb. 82 486.50 30,520 40,749.32 5,269.00 46,018.32 + 15,498.32 15 Payen D6sulm' M.L. F.M. Sohico Oct. 80 486.50 30,520 36,500.00 5,269.00 41,769.00 + 11,249.00 16 *Tamisee D;sulme M.L. F.M. **Sohico Oct. 81 486.50 30,520 36,500.00 5,280.00 41,780.00 + 11,260.00 17 *Habitation Georges Dfsulmg M.L. F.M. *Sohico 3,279.75 183,100 279,912.00 - 279,912.00 + 96,812.00 18 *Descahos D'sulmi M.L. F.M. Sohico 809.36 38,160 48,000.00 - 48,000.00 + 9,840.00 19 Port Margot D6sulmf M.L. F.M. **Lauth' Apr. 82 809.36 30,520 40,749.32 - 40,749.32 + 10,229.32 20 *Cap - Aeroport Laurin M.L. GIA HAN Oct. 80 809.36 30,520 36,460.00 11,073.95 47,533.95 + 17,013.95 21 Bassin Limbg Dgsulmg M.L. GIA *G. Lafontant Mar. 82 809.36 30,520 38,000.00 - 38,000.00 + 7,480.00 22 La Souffrire Laurin M.L. GIA *Lauthe Apr. 82 809.36 30,520 40,749.32 - 40,749.32 + 10,229.32 23 Bas Limbg Laurin M.L. GIA **Lauthe May 82 809.36 30,520 40,749.32 - 40,749.32 + 10,229.32 24 Bilee D6sulm M.L. GIA **Sohico Oct. 81 809.36 30,520 36,500.00 - 36,500.00 + 5,980.00 25 Duty Laurin M.L. GIA *Lauthe Feb. 82 809.36 30,520 40,749.32 - 40,749.32 + 10,229.32 26 Camplche Laurin M.L. GIA **Lauth6 Apr. 82 809.36 30,520 40,749.32 - 40,749.32 + 10,229.32 27 *Vaudreuil D sulme M.L. GIA *HAN Apr. 82 3,285.14 183,100 263,500.00 135,231.47 398,131,47 + 215,631.47 28 Pt-Bourt Pt-Margot D9sulme M.L. GIA *Lauthe Apr. 82 486.50 30,520 40,749.32 - 40,749.32 + 10,229.32 a x 1,298,360 1,836,117.06 481,687.92 2,317,804.98 +1,019,444.98 W 0