Guinea - Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 6498 PROJECT PERFORMANCE AUDIT REPORT GUINEA FIRST EDUCATION PROJECT (CREDIT 849-GUI) November 26, 1986 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 tu ONLY THE WORLD BANK Washington, D.C 20433 U.SA. Ofice of Doector-CeNeWal Operatiom Evaluatkin November 26, 1986 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Performance Audit Report: Guinea First Education Project (Credit 849-GUI) Attached, for information, is a copy of a report entitled "Project Performance Audit Report on Guinea First Education Project (Credit 849-GUI)" prepared by the Operations Evaluation Department. Attachment 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 fank authoriystion. FOR OFFICIAL USE ONLY ABBREVIATIONS AND ACRONYMS Acronym Nom de 1'institution Name of Institution MESRS Ministdre de l'Enseignement Ministry of Higher Education Supfrieur et de la Rech,zche and Scientific Research - Scientifique formerly MDEC MDEC Minist4re du Domaine de Ministry of Education and 1'Education et de la Culture Culture - now MESRS ENSET Ecole Normale Sup4rieure Teacher Training School for d'Enseignement Technique Technical Education - formerly ISFORPET ISFORPET Institut Sup6rieur de Technical Teachers Training Formation des Professeurs de Institute - renamed ENSET in 1'Enseignement Technique 1984 IFI Institut de Formation des Instructor Training Institute - Instructeurs until 1980 when it was renamed ISFORPET CFP Centre de Formation Vocational Training Center - Professionnelle replaced the IPS in June 1984 IPS Institut Polytechnique Secondary Polytechnic Institute Secondaire IPS-A Institut Polytechnique Secondary Polytechnic Institute Sacondaire d'Application - Demonstration School IPS-GC Institut Polytechnique Secondary Polytechnic Institute Secondaire - G6nie Civil for Civil Engineering IDA Association Internationale International Development de Dfveloppement Association (World Bank Group) UNESCO Organisation des Nations Unies United Nations Educational, pour 1'Education, la Science Scientific and Cultural et la Culture Organization SIRTES Soci6t6 d'ing6nierie en Human Resources Development ressources humaines et Society transfert de mattrise industrielle Note: In the above list, the acronyms currently used in Guinea are underlined. 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. PROJECT PERFORMANCE AUDIT REPORT GUINEA FIRST EDUCATION PROJECT (CREDIT 849-GUI) TABLE OF CONTENTS Page No. Preface ......................................................... i Basic Data Sheet ................. .................................. iii Evaluation Summary .......................................... vi PROJECT PERFORMANCE AUDIT MEMORANDUM 1. PROJECT BACKGROUND AND SUMMARY ........................... 1 II. PRINCIPAL ISSUES ......................................... 2 Educational Quality and Sustainability of Project Benefits .................................. 2 Studies Undertaken ...................................... 3 The PCR Mission ......................................... 4 Procurement ......................................... 5 Bank Group Involvement in the Project ................... 5 III. EDUCATIONAL OUTCOMES ................................... 5 The ENSET ............................................ 5 PROJECT COMPLETION REPORT Summary, Conclusions and Lessons ................................... 9 I. Project Background ..................................... 13 II. Project Implementation ............................... 15 III. Project Costs .......................................... 17 IV. Project Results and Impact on Education ................. 19 V. Evaluation of IDA Supervision Activities ............... 23 VI. Comments and Recommendations ................... ... 24 TABLE OF CONTENTS (cont'd.) Annexes 1. Estimated and Actual Costs by Category 2. Implementation Schedule (estimated vs. actual) 3. Compliance with Credit Agreement Covenants 4. Comparison between forecast and actual areas 5. ENSET/CFP: enrollments - output 6. Summary of Technical Assistance: (estimatad vs. actual) 7. Educational Planning 8. Content of Second Education Project 9. Structure of the Education System PROJECT PERFORMANCE AUDIT REPORT GUINEA FIRST EDUCATION PROJECT (CREDIT 849-GUI) PREFACE This is a performance audit of the First Education Project in Guinea, for which a Credit of US$8 million was approved and signed in September 1978. The credit account was closed in September 1984, when the small sum of about $7,500 remaining in it was cancelled. The audit report consists of a Project Performance Audit Memorandum (PPAM) prepared by the Operations Evaluation Department (OED) and a Project Completion Report (PCR) dated September 18, 1985. The PCR was prepared by a UNESCO mission which visited Guinea in October 1984; it was issued by the Western Africa Projects Department and was based in part on material prepared by the Project Implementation Unit (PIU). The PPAM is based on a review of material in Bank files, includiug the Appraisal Report No. 2025a-GUI of August 15, 1978, the President's Report No. P-2366a-GUI of August 29, 1978, the record of the Board discussion of this project on September 12, 1978, the Credit Agreement dated September 28, 1978, correspondence with the Borrower relating to this project, the PCR, and discussions with Borrower and Bank staff associated with the project. An OED staff member visited the project insticutions during an OED mission visit to Guinea in January 1986. The audit memorandum agrees with the conclusions of the PCR that this was a well-conceived and generally well-executed project; the PPAM is accordingly brief, concentrating on the issues of sustainability and the timing and utility of the studies undertaken in connection with this project. As is customary in the preparation of audit reports, copies of the draft audit report-in a French translation--were sent to the representatives of the Borrower for comment; this was done in July 1986. No comments have been received. PROJECT PERFORMANCE AUDIT BASIC DATA SHEET GUINEA FIRST EDUCATION PROJECT (CREDIT 849-GUI) KEY PROJECT DATA Appraisal Actual or Item Expectation Current Estimate Total Project Cost (US$ million) 8.900 9.936 Overrun (%) 12 Credit Amount (US$ million) 8.000 8.000 Disbursed 7.993 Cancelled .007 Repaid ) .000 outstanding ) as of 08/31/86 7.993 Date Physical Components Completed 12/31/80 04/30/81 --in Months Since Credit Signature 27 31 Proportion Completed by Above Date (%) 90 100 Proportion of Time Overrun (%) 15 Institutional Performance good CUMULATIVE ESTIMATED AND ACTUAL DISBURSEMENT (US$ million) FY 1979 1980 1981 1982 1983 1984 Appraisal Estimate 0.5 3.03 6.63 7.7? 8.00 -- Actual 0.27 1.87 5.47 6.64 7.28 7.99 Actual as % of Estimate 54 62 83 86 91 99.9 OTHER PROJECT DATA Original Actual or Item Plan Revisions Est. Actual First Mention in Files 02/11/76 Government's Application 06/77 Negotiations 07/17-19/78 Board Approval 09/12/78 Date of Credit Agreement 09/28/78 Effectiveness Date before 12/27/78 before 01/29/79 01/16/79 Closing Date 06/30/83 - 09/19/84 /a Borrower Republic of Guinea Executing Agency Ministry of Education and Culture (Subsequently Ministry of Higher Education and Scientific Research) Fiscal Year Borrower January 1 - December 31 Follow-on Project Name Second Education Project Credit Number Credit 1341-GUI Credit (US$ million) 11.0 Credit Agreement Date 04/26/83 /a The Credit was closed as of this date by an IDA telex to the Borrower. The final disbursement was made on May 10, 1984. - iii - MISSION DATA Sent Month/ No. of No. of Staff Date of Item by Year Days Persons* Weeks** Report Economic and Sector Mission TPA 04/76 3.0 4 6.0 10/76 Identification IDA 10/76 1.5 2(T,E) 3.0 11/05/76 (Project Brief) Preparation IDA 04-05/77 2.0 3(T,E,A,) 6.0 06/77 Appraisal IDA 10/77 2.0 4(T,E,A,L) 8.0 08/15/78 Total 23.0 Supervision I IDA 02/79 1.0 2(T,A,) 2.0 04/03/79 Supervision II IDA 10/79 1.0 1(A) 1.0 11/08/79 Supervision III IDA 12/79 1.0 1(T) 0.5 12/19/79 BTO Supervision IV IDA 06/80 1.0 1(A) 1.0 08/19/80 Supervision V IDA 10-11/80 1.0 3(G,A,E) 2.0 12/15/80 Supervision VI IDA 06-07/81 2.0 3(G,A,T) 3.0 07/29/81 Supervision VII IDA 01-02/82 3.0 3(G,A,T) 2.0 02/25/82 BTO Supervision VIII IDA 07/82 1.0 1(A) 0.3 07/21/82 BTO Supervision IX IDA 04/83 1.0 1(G) 0.6 06/30/83 Supervision X IDA 07/83 1.0 1(A) 0.4 07/25/83 BTO Supervision XI IDA 10/83 1.0 2(G,E) 0.2 11/09/83 BTO Completion UNESCO 10/84 1.5 2(Ag,A) 3.0 09/18/85 16.0 Total 16.0 STAFF INPUT (Staff Weeks) FY 76 77 78 79 80 81 82 83 84 85 Total Preparation 3.8 15.2 4.9 23.9 Appraisal 42.1 42.1 Negotiation 9.6 9.6 Supervision 7.0 6.3 5.3 4.3 5.7 2.0 11.2 41.8 Total 3.8 15.2 47.0 16.6 6.3 5.3 4.3 5.7 2.0 11.2 117.4 * A = Architect G = General Educator E - Economist Ag - Agricultural Educator T = Technical Educator L = Loan Officer ** Number of Staff-weeks attributable to this project. - iv - COUNTRY EXCHANGE RATES Name of Currency (abbreviAtion) - Syli (S) Exchange Rates: Appraisal Year Average (1977) -- US$1 S 520.00 Intervening Years Average -- US$1 = S 520.66 Completion year (1984) -- US$1 - S 522.72 ALLOCATION OF CREDIT PROCEEDS (US$) Original Actual Category Allocation Disbursements 1. Civil Works 2,380,000 2,570,528.30 2. Furniture, Equipment and Vehicles 1,600,000 2,589,865.18 3. Fellowships 300,000 580,982.49 4. Technical Assistance and Consultant Services 2,500,000 2,035,395.98 5. Refund of Advance 220,000 215,764.60 6. Unallocated 1,000,000 --- (Total Disbursed) (7,992,536.55) Cancelled 7,463.45 Total 8,000,000 8,000,000.00 - v - PROJECT PERFORMANCE AUDIT REPORT GUINEA FIRST EDUCATION PROJECT (CREDIT 849-GUI) EVALUATION SUMMARY Introduction A credit of US$8 million for this project was approved and signed in September 1978. Project costs were then estimated at US$8.9 million. Actual project costs are now estimated at US$9.9 million. The official Closing Date, June 30, 1983, was never changed, but the Credit Account was finally closed in September 1984 when the sum of US$7,463.45 remaining in it was cancelled. Objectives The project was designed to improve vocational education, educa- tional planning, and project implementation capacity in Guinea. New build- ings, furniture and equipment were financed for a complex in an industrial area near Conakry to train vocational teachers (110 places) and to provide vocational training for skilled workers (400 places). Technical assistance and fellowstiips were provided for this complex, and also to improve project implementation and planning. Implementation Experience This was good, much better than with most education projects, with good quality project buildings and equipment being provided with little delay. Results to date While an output of 60-80 vocational teachers per year had been expected, she actual output has been only 50 per year and is falling; the 400 places in the vocational training section at the time of audit were occupied by only 230 students. These somewhat disappointing results are said to be due to a paucity of qualified entrants, especially to the teacher training courses. The fellowship component for Guinean teacher trainers was well implemented but has not yet enabled the complex to operate without continuing infusions of technical assistance from abroad. Sustainability The vocational complex continues to enjoy strong Government back- ing, but the continuing need for outside technical assistance in providing courses is troubling; further the audit considers that the original appraisal - vi - estimate of 60 new vocational teachers being required per year may have been something of an over-estimate. Running a vocational school complex of this size is very costly per student-year and in the present difficult economic situaion in the country every effort needs to be made, not only to minimize recurrent costs, but to take a continuing hard look at the manpower justifi- cation for the project and the employment of its output. Findings and Lessons (i) This project was well executed, mainly because (a) it was a simple and well-conceived project, well supported by the Borrower; (b) the main project implementation unit personnel remained with the project from start to finish; and (c) IDA staff were flexible (perhaps indeed over-flexible in some ways) in the interpretation of IDA procurement guidelines (PPAM, paras. 4 and 7; PCR, para. 5.02). (ii) The austainability of the project is doubtful because of the continuing need for foreign technical assistance teachers, and a somewhat questionable manpower justification for the numbers of vocational teachers which the project was intended to produce per year (PPAM, paras. 7-10; 22). (iii) There was an excessive number of studies during the project period, *produced by different people on similar topics, and whose timing was not optimal (PPAM, paras. 11-14). PROJECT PERFORMANCE AUDIT MEMORANDUM GUINEA FIRST EDUCATION PROJECT (CREDIT 849-GUI) 1. PROJECT BACKGROUND AND SUMMARY 1. An IDA Economic and Sector mission visited Guinea in April 1976 and was followed by an identification mission in October the same year. Both missions were agreed that vocational teacher and technician training were areas of high priority, and following a preparation mission the project was appraised in October 1977. The project was approved and signed in September 1978 following more detailed work on its technical and architectural aspects financed by an advance from the Project Preparation Fund (PPF). 2. The project was designed to help meet the country's needs for vocational teachers, industrial technicians and skilled workers, and to improve capacity for educational planning and project implementation. The project consisted of (i) construction, furniture and equipment for a voca- tional teacher training institution and two related vocational training institutions, with institutional staff houses, all on a site in an industrial area some 20 km from Conakry; (ii) providing technical assistance for the vocational schools complex, the Ministry of Education planning office, and the project implementation unit. Total project costs were estimated at US$8.9 million, of which US$8 million were to be met by the Credit. 3. The project has been implemented substantially as originally conceived, with the project buildings completed within 2-1/2 years of Credit signing. There was a small cost overrun, largely occasioned by some increases in built areas over appraisal estimates. Total project costs have amounted to US$9.9 million, some 12% over appraisal estimates. The Closing Date of the Credit, June 30, 1983 (well after the completion date of the buildings because disbursements for technical assistance were to continue) was never extended. The final disbursement was made on May 10, 1984 and a small sum of US$7,463.45 was cancelled on September 19, 1984 when the Credit Account was closed. 4. This project, in regard to its physical facilities, was well executed; the audit attributes this success to (i) a simple and well- conceived project, well supported by the Borrower; (ii) a good start made possible by utilizing the PPF; (iii) a PIU where the main personnel remained with the Unit from start to finish; and (iv) IDA staff flexibility in the interpretation of IDA procurement guidelines. One should not quarrel with satisfactory implementation of course; however this flexibility in procure- ment is worth mentioning as an issue in this project. In regard to its educational outcomes, the audit is somewhat less sanguine. This is one of the major issues with this project, and is discussed further below. -2- 11. PRINCIPAL ISSUES Educational Quality ane Sustainability of Project Benefits 5. The Guinea education system suffers from generally low standards, occasioned by the poverty of the country and its political problems over the past several years. There are intrinsic standards which must be met if scientific and technical schools are to fulfill their functions, and in Guinea the educational background of entrants to secondary schools generally is low. In turn, the quality of G6inean technical teachers is also generally rather low. The project attempted to overcome these problems by a substan- tial technical assistance component, and also by sending Guinean staff on fellowships abroad. 6. These project initiatives were well conceived, and indeed as far as can be judged they were also well carried out--a single entity provided most of the technical assistance for the ENSET during the project implementation period and this firm also provided training for the fellowship holders. By all accounts this technical assistance and also the fellowship training were generally of a high standard (though it was not possible to find an expert to train teachers in heavy Public Works machines, and training in this spe- ciality, one of the nine originally intended in the ENSET, has never been offered.) 7. The problem is that now, several years after the ENSET has begun to function, technical assistance is still needed to provide teachers in the ENSET, it having been found that there are insufficient Guinean staff qualified to teach in the ENSET. Expatriate staff still are required and are being paid from funds supplied by the African Development Bank (ADB), but the question arises as to how long outside agencies will be prepared to under- write such costs. The sustainability of project benefits is thus in doubt. 8. In the view of the audit, this question should be of prime concern to the Government. Its resolution would seem to call for the following measures. First, a careful review of Government policy toward the ENSET. The ENSET was originally intended to be a "center of excellence," the crown of the technical education system in Guinea. If this concept is still applicable (and the audit considers it is worth support) then greater Government effort will need to be made to keeping up, and hopefully improv- ing, the image of ENSET. Good teachers from other IPS schools should be considered for transfer to the ENSET, where their capacities can be used to train others. Fellowships for them should be stressed, with a view to reduc- ing the country's dependence on technical assistance experts. 9. In this connection, and in the view of the audit, this attempt to become more independent of foreign technical assistance is particularly important in countries with a very low per capita income such as Guinea, where conditions of life are difficult and which are generally not very attractive to technical assistance experts, and where in consequence the cost - 3 - of such experts is often higher than the value of the services they provide. Further, there is the question of familiarity with the country. In mid-1983 for example, the Government was reluctant to hire foreign consultants, part of whose job would be to prepare equipment lists, since the Government considered that, as the experts could not know the Guinean context well enough, they would just use prototype standard lists. This comment, a very pertinent one, needs to be carefully borne in mind in considering proposals for technical asiistance in education. 10. The long-term solution to maintaining, or hopefully improving, ENSET quality needs to be addressed n6w, as the institution seems to be some- what at a crossroads: the audit feels if some remedial measures are not put in hand soon the standards of the institution could be compromised. At the same time as the problem of teachers is addressed efforts should be made to improve the quality of the students by trying to improve their theoretical background in mathematics and the sciences. Here again, improvement will le a slow process. There are also problems of the physical maintenance of the project buildings and equipment; these have been adequately dealt with in the PCR (paras. 2.18-2.20) and need only brief mention here. Studies Undertaken 11. During and immediately after the period of project implementation UNESCO has provided a number of studies relating to the education sector. It will be convenient to list them in order of publication. (a) Strategy for Development of Education and Training, 1982-2000. Human Resource Planning, March 1983; (b) Report on the employment and human resources situation, 1983; (c) A report on agricultural education and training, July 1983; (d) Project Completion Report; First Education Project, September 1985; and (e) Education Sector Study--Perspectives and constraints on Educational Development; a compilation of six individual reports together with a synthesis, 2 vols., August and October 1985. 12. These studies were undertaken in response to specific exigencies and for different audiences rather than as a coherent study program formu- lated at the beginning of the project. Studies (a) and (b) were planned as inputs into the preparation of the Second Education Project, (c) was prepared on behalf of one of the Regional Agriculture Divisions, (d) was the customary project completion exercise and (e) was intended to provide the factual basis for further investment in the sector, As a result, a certain amount of over- lapping was inevitable. 13. Bank Group staff with whom the audit mission had discussed the study program were of the opinion that the main problem with the studies was rather that they could not all be done in good time: the first two reports were undertaken too late to serve their intended purpose of supporting documentation for the Second Education Project. 14. With regard to sources of financing, credit funds in the amount of US$290,000 were made available to finance studies (a) and (b), the other studies being financed under the World Bank/UNESCO Cooperative Program. This amount, however, was not fully spent. In September 1984, shortly before the closing of the Credit, it was reported that almost one third of this sum (US$115,000) was still unspent, and it was proposed to finance three of the individual reports which became part of study (e), on higher education, financial aspects of education, and problems of education administration and management, respectively. In addition, a fellowship of ten months in the field of education planning was financed from the balance of the initial US$290,000 allocation. The remainder of about US$70,000 will be credited to the Government by UNESCO; it is recommended that the Region prevail upon the Government to use the funds in accordance with the objectives of the First Education Project. The PCR Mission 15. This mission, mounted by UNESCO and comprising a regular UNESCO staff member and a consultar., visited Guinea in October 1984. The timing of the mission, after final disbursement, was thus suitable. However, its composition can be faulted. Not only was the mission composed of two persons who had never been involved in the project before, thus once more going against the Bank Group principles of self-evaluation, but the educator on the mission was an agricultural educator when the circumstances clearly called for a technical educator. The PCR itself (para. 5.01) rightly points out the dearth of technical educators on IDA supervision missions and it was particu- larly regrettable that there was no technical educator on the completion mission itself. Notwithstanding these comments, the PCR is of reasonable quality, due no doubt to the fact that there had been excellent continuity in the PIU team, which had indeed prepared some most useful material for the use of the PCR mission. The point to be made here is that IDA should not rely on these circumstances to ensure quality PCRs. 16. A further criticism relates to the failure of Sector Study staff to collaborate with staff on the PCR mission. The three additional studies men- tioned in para. 16, and thus to be financed using project funds, were intend- ed at one time to form part of the Sector Study (Report (e), para. 11). Although discussions on the Sector Study were being held in Guinea by UNESCO and IDA staff at the same time as the PCR mission was in Guinea there is no record of the staff concerned meeting. In the view of the audit Sector Studies, especially those made under Bank Cooperative programs, should make specific reference to the outcome of previous Bank Group financed projects and collaboration between Sector Study and PCR missions should be strongly encouraged. -5- Procurement 17. While procurement in this project was expected, according to the Credit Agreement, to follow the usual procedures, the files show that often enough this was not done. Typically, the Guinean authorities would receive a number of bids. Based or. their knowledge of the individual bidders, a bidder would be provisionally selected for contract award, and then the authorities would enter into negotiations to get a rebate on the price quoted. In 1979' this happened quite frequently, with IDA staff accepting this process of the authorities seeking rebates. It was not always clear that these rebates were to be sought on the lowest bids. In the event no objections were raised by unsuccessful bidders to this practice, and as has been noted the physical implementatior of this project proceeded well. Nevertheless, the procedures adopted were uften not in accordance with Bank Group guidelines; the position needs to be considered in relation to ongoing and future projects in Guinea with a view to considered decisions being made. Bank Group Involvement in the Project 18. Certain aspects, somewhat negative, of this involvement have been discussed in previous paragraphs. By and large, however, this involvement was very positive. The project design was well-concfived, with regional staff resisting certain suggestions made in the Bank during project genera- tion, suggestions which would have had the effect of complicating the project. Furthermore, and very imDortant, Borrower staff found Bank Group supervision missions very helpful .n moving the project along. As the PCR indicates (para. 5.01) these review missions might have been even more effective had they been staffed with more technical education experts. Borrower staff indicated great interest in seeing supervision reports as they are made; the audit mission strongly supports this idea. 19. The main problems with implementation of this project were not its physical aspects, but its educational software aspects. These are much more difficult to deal with as they tend to involve the whole education sector, and the mere involvement of more Bank Group educators in project supervision is unlikely to resolve the problems. However, greater concentration on these aspects of project implementation will be necessary it Bank Group involvement in the se-tor is to hope to achieve the ultimate objectives of education projects. These objectives, it is worth repeating, involve education and training, not the mere provision of educational facilities. III. EDUCATIONAL OUTCOMES The ENSET 20. Opinions vary as to the educational standards achieved in the ENSET; those directly concerned consider that these standards, granted condi- tions in Guinea, are reasonable. However, some staff in a technical school visited by the audit mission expressed the opinion that the teacher (in- service) training progrc is offered in the ENSET were of too low a standard to - 6 - be worthwhile, and that in some cases technical assistance experts were no better than local teaching staff. The audit is not in a position to adjudicate between these conflicting claims. All were agreed that the physical facilities provided at the ENSET were generally good, and that two years apprentice training there (as envisaged at appraisal) should be worth three years elsewhere in the country. Some staff thought more modern equip- ment (e.g., computer controlled lathes) should be installed; others were of the opinion that this might be useful for students from Conakry, but not' elsewhere. All were in agreement with the PCR (paras. 2.18-2.20) that more attention needs to be given to the maintenance of the project facilities. 21. Details of the enrollments in the nine specialities (general mechanics, auto mechanics, welding, electricity, masonry, carpentry, plumb- ing, metalwork, and public works equipment for the years 1980/81 through 1984/85 are given in the PCR (Annex 5). At the time of the audit mission visit the ENSET had a total enrollment of 335, 107 instructors-in-training (including four women) and 228 apprentices (including 15 women). The apprentices follow a two-year course (the same course outside the ENSET lasts three years) and the instructors either a one-year inservice course or a three-year pre-service course. In October 1986, when a new group of instruc- tors will begin their training, only pre-service training will be given. 22. The audit mission is doubtful as to whether the country can continue to absorb these numbers of newly trained technical instructors, and the sustainability of the project is thus in some doubt. The appraisal report had indicated (para. 2.04) that "The institute.....would provide 60 to 80 instructors a year for the secondary polytechnic institutes." This number (higher than actual achievements of course) seems much higher than the country's effective demand for such instructors over the long term. Other factors bearing on the sustainabiity of project benefits have already been mentioned (paras. 7-10). -7- GUINEA FIRST EDUCATION PROJECT CREDIT 849-GUI PROJECT COMPLETION REPORT September 18, 1985 Western Africa Projects Department Education Division 派 低 ら 海 受・！ A \I 奄 再 - 9 - GUINEA FIRST EDU, ATION PROJECT (Cr. 849-GUI) PROJECT COMPLETION REPORT SUMMARY, CONCLUSIONS AND LESSONS Summary 1. Project Objectives. At the time of appraisal, IDA knowledge of the detailed functioning of the Guinean education system and of the effectiveness of the Government's education policy was limited. Therefore, the IDA strategy was to lend for investments to satisfy clearly identified and high-priority manpower needs where project implementation would not unduly strain the existing administration and management capabilities. Within this framework, the First Education Project was designed to improve and expand training programs for industrial technicians and skilled workers and to strengthen the sector's capacity for educational planning and project implementation (para 1.03). 2. Project Content. An TDA Credit of US$8.0 million was granted to Guinea on September 12, 1978, to assist in: (i) constructing and equipping a vocational teacher training institute, two vocational training institutes and instructional staff accommodations; (ii) equipping the Planning Office of the Ministry of Education and the Project Management Unit; and (iii) providing technical assistance and staff training for items (i) and (ii) (para 1.04). 3. Implementation. The Project was carried out successfully within the normal time frame and without any change in its composition. Successful implementation was due to the convergence of the following favorable factors: (a) Local Funds: the Government met its commitment to open in good time a US$50,000 revolving fund for local purchaies; I/ and a US$250,000 revolving fund to finance the local part of civil works and operating expenses and to regularly replenish it; (b) Guinean Management. The Project was well administered by a Project Unit that 'was not only permanent (no staff turnover) and competent (with upgrading provided under the Project), but also highly motivated. Proof of this is to be found in the regular Jispatch of detailed quarterly reports to the Bank, and execution of the recommendations made by titie supervision missions. In I/ Financed under the Credit. - 10 - addition, the Project Unit received regular and effective support from the supervisory ministry (MESRS); (c) Supervision. Effective supervision of the project by IDA person- nel who conducted a total of nine missions at six-month intervals (see Basic Data); (d) Civil Works. Architectural studies were well advanced prior to the effective date of the Credit (January 16, 1979), which minimized the risks of delay in execution of civil works. Unity of place (one site for three project institutions), proximity to the capital, and unity of execution (just one contractor) like- wise contributed to steady progress in the construction phase of the Project. Except for a few minor points mentioned in the supervision reports, the construction and equipment phases were carried out without problems. As investment in this area turned out a little larger than had been expected, the effectiveness of the Project was in fact enhanced as a result; and (e) Technical Assistance. This was also effective, due to single sources of assistance (a private firm) for Parts A, C and D of the Project, and UNESCO for Part B, and good coordination between them. However, at ENSET, the work of the nine experts varied in quality (i.e., carpentry and masonry were poor). Conclusions 4. Considering the fact that this was the first IDA participation in an educational project in Guinea, there is reason for satisfaction at the smooth way in which the project was implemented. Most of the physical aspects of the project were implemented on time; Government provided its counterpart budget contribution; and the PIU was well staffed with permanent officials. In total, the implementation was better than with most Bank educational projects. 5. There were, however, some problems faced during implementation, and others caused by faults in original project design as follows: (a) The operational budget for ENSET has never been sufficient; (b) There has been no maintenance of the buildings and equipment; (c) The buildings are not being used to full capacity. There has been rarely more than a 75% utilisation; (d) 25% more space per student was provided than included in the original design; (e) Most serious of all is the fact that ENSET is not sustainable with National Resources, but still requires substantial external Technical Assistance for its operation. 6. The evaluation mission gives the project an overall rating of quite good, despite the shortcomings mentioned above. - 11 - Knowledge and Lesson 7. The Project led to a better knowledge within IDA of the education sector in Guinea for the purposes of further projects and better identifi- cation of risks and limiting factors. 8. The main lesson is that projects focusing on one or two major issues facing the education system and concentrating resources on solving these issues are more likely to be successful even if Government experience in implementing IDA financed projects is limited. ヲル留ダりaグcラゾ ーどノー 13 - 1. PROJECT BACKGROUND A. Socio-Economic_Setting 1.01 In 1975, Guinea's working-age population numbered about 2.3 million. A lazge part of the population worked in rural areas, mainly in traditional farming. Only 126,000 workers, or 6% of the working-age population, were wage earners. Of these, about 33,000 were employed in public administration, while the remaining 93,000 worked in public or para-statal enterprises, mainly in mining or industry and in the primary sector. The modern sector labor force generally had low professional qualifications except at the top of the occupational ladder and in the mining industry. Organized training of skilled workers for industry was limited to a few big enterprises in the mining and railway sectors. Most semi-skilled workers had acquired some vocational skills through on-the-job training. At the time, forecasts showed that an estimated 13,000 jobs would be created anni-ally from 1976 to 1985 through new employment and replacement of existing labor. Demand would be highest in ccnstruction and mining (41% of total requirements), followed by public administration (29%), the services sector (17%) and primary sector activities (13%). 1.02 In the area of industrial training, the supply of skilled workers and technicians covered only about 50% of the expected annual demand: approximately 200 industrial technicians graduated from the National School of Arts and Trades each year, and the newly created secondary polytechnic institutes were expected to produce about 550 skilled workers per annum. Bank-assisted projects in highways, feeder roads, water supply and electricity, projected for the 1978-82 period, were expected to place considerable demands on the already scarce manpower resources at the skilled worker level. B. Identification and Development of the Project 1.03 The education sector was analyzed in the course of an IDA economic mission to Guinea in April 1976; an Education Sector Memorandum and a project outline were prepared in June 1976. An IDA mission visited Guinea in October 1976 and reached agreement with the Government on the constituent elements of a First Education Project to be financed by IDA. In May 1977, a joint preparation and preappraisal mission visited Guinea; the Government thereupon requested an advance from the Project Preparation Facility (PPF). A mission appraised the project in October/November 1977. Negotiations took place daring the third week of July 1978. The appraisal report was completed on August 15, 1978. IDA approved the project on September 12, 1978, 2/ allowing the parties to ratify the Credit Agreement on September 28, 1979. The Credit Agreement became effective on January 16, 1979. It was followed by nine supervision missions which turned up only minor problems. The project was closed on June 30, 1983. Very few questions were raised during the Board discussion, except with regard to the use of local languages. - 14 - C. Objectives and Composition 1.04 According to the initial appraisal, the principal objectives of the project were to: (a) Improve the quality and efficiency of the existing secondary polytechnic institutes by: (i) updating their training programs; (ii) improving the technical and pedagogical qualifications of their instructors; and (iii) establishing closer links with employers. (b) Expand the capacity for training skilled workers for industry and public works by constructing two new polytechnic institutes. (c) Strengthen the Government's capacity for educational planning and project implementation. 1.05 The project comprised: (a) Construction, furnishing and equipping of: (i) an institute with the capacity for 110 students to train and upgrade instructors for secondary polytechnic institutes; (ii) two polytechnic institutes with a combined capacity of about 400 students, to train and upgrade skilled workers for industry and public works; and (iii) accommodations for instructional staff (15). (b) Equipment and material to set up a planning office in the Ministry of Education and Culture and a Project Unit. (c) Provision of 36 man-years of technical assistance and consultant services and 30 man-years of fellowships for items (a) and (b) above. 1.06 It should be noted that there were no caanges in the composition of the project between initial appraisal and final evaluation, which is an unusual enough occurrence to warrant mentioning. From this, one can only conclude that the project entirely met the needs of the education sector and the resources and aspirations of the Guinean authorities. - 15 - II. PROJECT IMPLEMENTATION A. Period of Implementation and Compliance with Credit Agreement 2.0. The credit became effective on January 16, 1979, three and a half months after it had been signed. The project continued to be implemented up to the original Closing Date for the Credit (June 30, 1983). 3/ 2.02 In accordance with the Credit Agreement signed on September 28, 1978, the project was executed by a special unit known as the Project Unit, set up for the purpose within the Ministry of Education and Culture (MDEC), which later became the Ministry of Highe-- Education and Scientific Research (MESRS). The Project Unit was established and its composition defined by decree on May 20, 1978; the Director and Assistant Director were appointed by decree on June 8, 1978. 2.03 The Project Unit was responsible for all administrative and management tasks associated with the project, together with the awarding of the various contracts. Technical studies related to conbtruction and selection of furniture were assigned to a private architectural firm, with the Project Unit supervising the work, receipt of goods, and installation of the furniture and equipment. 2.04 The Project Unit operated effectively throughout the duration of the project, despite a certain shortage of administrative personnel; this successful performance was due to the competence and effectiveness of its local and expatriate staff. 2.05 At the time of the completion mission for the first project, the Project Unit had a total staff of 16, under the authority of its Director. These staff members are spread over four main sections (management/ accounting, administrative secretariat, pedagogical division, and supervision of works). 2.06 The Project Unit's potential problems seem to lie in a shortage of qualified nersonnel in management, accounting and pedagogical services, which are excessively centralized. 2.A7 Most of the Project Unit's professional staff have been on the job since 1979 and have benefited from their experience with the project. Three works supervisors, the manager and the building engineer went on advanced training courses in Europe, financed under the project. The Director of the Project Unit was able to attend courses organized by the World Bank in Washington. 2.08 The Government complied with most of the conditions laid down in the Credit Agreement, although sometimes it was a little late in doing so 3/ However, addenda to contracts entered into prior to June 30, 1983 were signed after the closing date (February 1984), with the agreement of the Bank, in order to use up the remainder of the credit. - 16 - (Annex III). The main problem relates to maintenance of the buildings and equipment. B. Physical Execution Sites 2.09 The three initially separate institutions were built on the same site; this enabled them to be integrated into a single institute (ISFORPET which later became ENSET). Site acquisition did not give rise to any problems. The relative distance of the site from the center of town (20 km) is reported at one time (1981) to have given rise to attendance problems. Architectural Studies 2.10 These studies were awarded to a consulting firm in September 1977, prior to signature of the Credit Agreement. The architectural studies were carried out within the agreed timetable up to the issuance of calls for bids. The buildings were designed as conventional structures (concrete construction, metal frame, asbestos-cement roofing). Areas are generally well suited to the activities they are designed to accommodate. Major comments relate to ventilation of certain workshops, the inadequate security of workshops and dwellings, and the absence of dust protection in certain areas (reprographic workshop, electrical shop). The areas intended for equipment storage are generally much too small and the areas for storing working materials are poorly equipped (shelving and storage racks inadequate or nonexistent). Construction 2.11 On March 24, 1979, the contract for construction of ENSET was awarded to a consortium of two contractors. The contract was awarded following an international call for bids issued at the end of June 1978. Eight replies were received, all from foreign companies. Final acceptance of all the buildings took place on August 16, 1982. 2.12 Construction was carried out satisfactorily in the mission's opinion, having regard for the reservations expressed in paragraph 2.10 concerning certain design problems. 2.13 The contractors encountered several problems in protecting the work site (damage and/or disappearance of materials), resulting in a delay in the final acceptance of the buildings. Furniture and Equipment 2.14 There were no major problems in connection with selection and procurement of furniture and equipment, or with their delivery and installation. 2.15 All of the furniture and most of the equipment were bought under international competitive bidding. As the closing date for the credit approached, some money remained and additional furniture and working - 17 - materials were bought for the Project Unit and ENSET. Restricted calls for bids were issued for these final purchases, after first securing IDA agreement. 2.16 The furniture bought by the project is of good quality, except for that intended for the staff housing. 2.17 All of the major equipment supplied to ENSET is appropriate for the purpose and cf good quality. After three years of operation, however, certain items of equipment are out of service (dust extractor in the woodworking shop, grinding machine, and planing machine), and some of the tools and small items of equipment needed to be replaced because they are broken or have disappeared. Maintenance 2.18 Day-to-day maintenance of the ENSET buildings has not been carried out satisfactorily and all of the buildings look rather weatherbeaten (moss and fungi growing on the outside walls, and water spots on the inside walls where leaks have occurred). All of the vehicles assigned to ENSET are out of commission for lack of money and/or replacement parts. ENSET's major equipment has received inadequate maintenance, having regard to the presence of dust and rusting occasioned by high humidity. 2.19 The Project Unit's offices need to be maintained and renovated. Funds are provided to this effect under the Second Education Project (Cr. 1314-GUI). 2.20 Recommendations are made in Chapter VI regarding provisions for maintenance of ENSET and the Project Unit. III. PROJECT COSTS A. Total Project Cost 3.01 The total cost of the project amounted to 190,224,300 Sylis or US$9,935,000, an increase of 11.5% over the appraisal estimates in U.S. dollars. A detailed breakdown of the project costs is presented in Annex I, and a summary table in U.S. dollars is given below. Item Appraisal Actual Difference (%) ENSET (formerly ISFORPET) 7,555,000 8,317,000 +10 Educational planning 675,000 302,400 -55 Project management 675,000 1,316,000 a/ +95 Total 8,905,000 9,935,900 +11.5 a/ Reasons: procurement of additional equipment, financing of architectural studies for the second project, and payment of technical advisor through the end of 1983. - 18 - 3.02 The difference between the actual cost and the estimated cost is accounted for largely by increase in the volume of equipment and working materials furnished under the project to ENSET and to the Project Unit. This increase was made possible by greater government participation in the financing of construction. 3.03 The US$8.0 million credit was intended to finance 100% of the foreign exchange cost and 89.8% of the total cost of the project. At the time of the completion mission, disbursements against the credit, amounting to US$7.99 million, had covered 80% of the project cost. Local expenses, estimated at 23% of the cost of construction at the time of appraisal, in fact represented 40% of total expenses under this category. B. Expenditures 3.04 Expenditures by Category and Component (in US dollars) Appraisal/Evaluation Actual/Rgel Amount % Amount % (Montant) (Montant) A. Category Civil works 3.599 40,4 4.141,7 41,7 Furniture 336 3,8 278,7 2,8 Equipment 1.444 16,2 2.437,4 24,5 Fees 220 2,5 377,7 a/ 3,8 Technical Assistance 2.916 32,7 1.986,6 20,0 Fellowships 390 4,4 460,6 4,6 Operating costs - - 253,2 2,6 Total 8.905 100 9.935,9 100 B. Components ENSET 7.555 84 8.317,5 84 Educational planning 675 8 302,4 3 Project unit 675 8 1.316,0 13 Total 8.905 100 9.935,9 100 a/ Including architects's fees for Second Project's constructions design. C. Disbursements 3.05 Disbursements were slightly below appraisal estimates, ranging from 54% to 93% of appraisal estimates, which can be interpreted as an - 19 - average delay of four months against forecast (see Table E of Basic Project Data and Annex II). D. Unit Costs 3.06 Cost of construction amounted to US$464 per m . Surface area amounted to 13.7 m2/student as against 11 m2/student at the time of appraisal. Comparative Analysis of Cost per Place, Estimated and Actual a/ Construction Furniture Equipment Total Difference (%) Est. Actual Est. Actual Est. Actual Est. Actual 5,305 6,382 341 310 2,585 4,136 8,231 10,828 +31% a/ In US$, excluding cost of staff housing. 3.07 The theoretical cost of training 4/ is US$586 per student. ENSET's budget breaks down as 97% wages and 3% operating expenses; there is no actual budget for maintenance uf facilities. 3.08 The unit cost per month for expert services and fellowships was grossly underestimated at the time of appraisal: this cost was underestimated by roughly 12% for the experts and by 156% for fellowship holders. Without the rise in the U.S. dollar, the difference would have been greater, particularly for the experts. IV. PROJECT RESULTS AND IMPACT ON EDUCATION A. General 4.01 In the technical education field, the project helped to achieve three of the objectives set by the Government in 1977 for education, namely: (a) maintenance of access to secondary education and development of practical training geared toward employment; (b) improvcd quality of education through better teacher training and better equipment; (c) expansion of the planning and implementation capacity of the Ministry of Education (MESRS). 4/ On the basis of capacity for 510 students. - 20 - It :-hould be noted that the educational reform introduced in August 1984 under a new political constellation did not question any of the beforementioned objectives. The project achieved the following objectives: establishment of the ENSET complex (training of instructors and vocational training in nine technical specialties); practical training in workshops with adequate equipment and qualified personnel; technical and pedagogical training of instructors; planning studies (component B); establishment and strengthening of institutions such as the Education Projects Office in the MESRS; and training of national staff as a result of technical assistance. B. Teacher Training School for Technical Education (ENSET) General 4.02 The project resulted in the establishment of a complex encompassing instructor training and two demonstration schools for nine technical specialties, whereas a single demonstration school had been planned at the time of appraisal. Overall cohesion has therefore been strengthened by having a single director general and a single administration for this complex, which now represents the cornerstone of technical and vocational training in Guinea. Instructor Training 4.03 In accordance with the appraisal estimates, ENSET: (a) is training instructors each year: 51 in 1980/81, and 64 in 1981/82 (the estimated throughout had been 60-80 per year); (b) is using the expected sources of recruitment: the National School of Arts and Trades (Ecole Nationale des Arts et Mgtiers) and the vocational training centers; (c) is focussing on practical training in a workshop situation for groups of 15 students; (d) is employing modular training about 60% of the time, as proposed at the time of appraisal. This system of training, which is producing satisfactory results at ENSET, may be extended to other vocational training centers. Annex V shows the breakdown of students at ENSET. The external training received by 18 Guinean instructors in France was satisfactory. These local instructors have taken over from the nine teaching experts. After a problem of absence of coordination between experts and counterparts had been identified, pedagogical coordination was improved. Polytechnic Training for Skilled Workers 4.04 During the start-up years 1981, 1982 and 1983, ENSET had a student body of 125, 156 and 135 respectively (see Annex V) as against the initial forecast of 180. The groups of approximately 15 students are divided among the technical specialties in light of the results of aptitude tests and requirements. It is doubtful whether more students could be - 21 - trained each year as suitable candidates are lacking. The bulk of the training is provided in a workshop situation and the pedagogical approach is satisfactory. The programs designed by the experts are appropriate. The four-month period of practical training in industry has been reduced to two months, but the good relations that exist between the school and industrial enterprises should make it possible to improve the internships or renew them later. The only reservation concerns the tendency to sacrifice instruction in favor of workshop output. Upgrading 4.05 Upgrading courses (called for in the project) were provided for the teachers/instructors in vocational training centers in the form of ten months training for 51 engineering aides (aides-inginieurs) in 1980/81, 64 technicians (agents techniques) in 1981/82 and a further 84 technicians in 1982/83. All returned to their respective vocational training centers. Upgrading courses haNe been suspended until there are again a sufficient number of candidates tiained at these two levels. C. Technical Assistance Fellowships 4.06 Technical Training Fellowships. The project called for 240 fellowship-months for the training of ENSET instructors; only 168 fellowship-months were actually used, in a more diversified manner than initially planned. There were two groups of nine fellowship-holders 5/ for one academic year each, together with a fellowship for the Director of ENSET and two fellowships for two other instructors. To this effect, the sums allocated were inadequate. The vast majority of the fellowship- holders (20 out of 21) said that they were satisfied with their technical and pedagogical internships provided by the contractor. 4.07 Fellowships for Project Unit Staff. The technical assistance summary (Annex VI) shows that, instead of three project unit staff being awarded fellowships for two years each, it was felt by the Government to be preferable to provide shorter fellowahips (2-6 months), representing a total of 28 fellowship-months for seven different professionals; 6/ the mission finds that this formula was more effective, more diversified, and more compatible with the continuing implementation of education projects. 4.08 Planning and Statistics Fellowships. The program called for two people to receive fellowships for training overseas in planning and statistics for two years each. In point of fact, however, two Guineans 5/ Technical specialities: mechanics, auto mechanics, electricity, welding, carpentry, masonry, metal work, plumbing, and public works equipment. 6/ Works engineer, three site supervisors, one offset operator, one accountant and one study trip for the project director. - 22 - received an eight-month internship and one four months. A training seminar also took place, which was part of the Manpower forecasting study. Two Guinean professionals took this 10-month course which was organized and financed by Unesco at the International Institute for Education Planning in Paris. Specialist Services 4.09 Vocational Training. Nine experts or 279 staff-months were provided under the project to support ENSET. The nine specialists performed their contracts by providing technical and pedagogical training on the spot to ENSET instructors who in turn provided training in the demonstration schools. However, there was a shortfall of 69 expert-months compared with the appraisal estimates. 7/ The pedagogical output was good but the technical level was judged inadequate in the case of two of the experts (carpentry and masonry). 4.10 Project Unit. The Project Unit benefited from effective assistance from two experts, starting in January 1979, who served as assistant manager and architect respectively. At the date of the final evaluation, the assistant manager was still on the job (he has been rehired for the Second Project) within the Project Unit, which has now become the Education Projects Directorate within the MESRS. 4.11 Educational Planning (Part B of the project). Assessment of the structure of the education system had made education planning necessary. The project met this need as follows: (a) Two Unesco missions visited Guinea in 1982 and 1983 to conduct surveys, make analyses and prepare projections of manpower requirements by the year 2000. The results from these studies are serving as a basis for the current discussions on educational planning in light of future needs. (b) In addition, a Unesco mission on agricultural training (not financed by the project) visited Guinea in January 1983 and put forward recommendations relating to the sector (report dated July 1983 -see Annex VII). The impact of this Unesco assistance has been reflected in the greater importance attached to manpower planning and the establishment of a planner position in each academic inspectorate. Annex VII provides more details on implementation of this component B of the project. 7/ This is due primarily to a combination of circumstances involving the post of public works equipment expert; a number of contracts were also shortened by 2-3 months (Annex VI). - 23 - D. Other Project Impacts 4.12 The following should be mentioned as impacts and as elements promoting consistency in the strategy being applied: The inclusion within the Second Education Project, currently being implemented, of items which represents a continuation of the First Project (see Annex VIII): (i) support for ENSET and vocational training (assistance to three vocational training centers); (ii) logistical support for vocational training centers from ENSET; (iii) training of instructors and program review; and (iv) strengthening of the Directorate General of Planning (MESRS) and the Human Resources Division in the Ministry of Planning. V. EVALUATION OF IDA SUPERVISION ACTIVITIES 5.01 The project was supervised in the field through nine missions, one of which was in conjunction with an appraisal mission. The total time involved represented 120 days of supervision. The first three missions were conducted solely by an architect. Technical educators were rather scarce (four missions) relative to the project's major focus (technical education). No economist or planner 8/ was included, even though Part B of the project dealt with educational planning. Each mission was followed by a letter or cable to the Government setting out the actions to be taken at each stage of the project. 5.02 Proper execution of the project was greatly facilitated by the simplicity of the project's design and also by close cooperation between IDA and Borrower representatives. The project's execution was also facilitated by continuity throughout the duration of the project, and in the staffing responsible for executing and supervising the project. This cooperation was especially useful when it came to: (a) appraising the training programs offered by ENSET (formerly ISFORPET); (b) implementing and making use of technical assistance; and (c) allocating the remainder of the credit before the closing date. 8/ Except as part of the appraisal mission for the Second Project. - 24 - VI. COMMENTS AND RECOMMENDATIONS 6.01 The project was closed on the agreed date of June 30, 1983. Disbursement would have been complete if roughly 75% of the remaining balance (amounting to some US$800,000) had not been due to the rise in the price of the dollar in relation to the main disbursement currency (French francs). With the agreement of IDA, this balance was used judiciously to supplement and diversify the training and equipment (see Basic Data Sheet). The mission is of the opinion that, barring the exceptions mentioned in Annex III at... in particular the problem of maintenance at ENSET, all the clauses of the Credit Agreement were duly observed. The physical portion of the project was completed in December 1980 (official acceptance in April 1981) and immediately put to use to start the training called for in Part A of the project, i.e. vocational training. The educational part of the project is in conformity with the objectives laid down at the time of appraisal, with changes that take account of a new environment. 9/ Certain essential comments need to be made and lessons drawn from this project as a basis for recommendations for the future. A. Comments Project Design and Execution 6.02 Unlike most education projects, this project had only one component relating to a single sector, namely vocational training. In addition to this simplification of the physical part of the project, which was executed on a single site near the decision centers, technical assistance was also simplified in logistical terms, with just one source for Parts A, C and D of the project, and another for Part B. Two further factors that contributed to the effectiveness of the project were: (a) the two special revolving funds for the project; and (b) the powers attributed to MESRS in regard to awarding of contracts, thereby avoiding delays, which could provide a useful lesson for the new Tender Board Institutional Development 6.03 The First Education Project made possible not only the establishment of a Project Unit, but also the setting-up of an Interministerial Planning Committee and strengthening of the Planning Office in the Ministry of Higher Education and Scientific Research. The ENSET complex (three institutions on one site) has now become a smoothly functioning national institution, (except as regards maintenance), which is contributing to the strengthening of training and review of curricula in vocational training centers. 9/ Suspension of upgrading at ENSET in favor of initial training as a result of a lack of staff to be retrained. - 25 - Development of Vocational Training 6.04 As mentioned in paragraph 4.12, this First Project had the merit not only of proposing a long-term vocational training strategy (Part B) but also of establishing it on a firm basis, starting with the training of instructors and the establishment of demonstration schools (Parts A and C). The Second Project proceeds in the same direction by calling for technical training to be provided in three new decentralized vocational training centers and making use of ENSET's central Supply Unit to distribute equipment to the vocational training centers (Annex VIII). The Third Project could continue along this road by continuing the modernization and standardization of equipment and materials used by the vocational training centers. B. Recommendations These comments, and the lessons drawn from the projects, as listed above, prompted the mission to make the following recommendations to IDA and the Government. 1. Recommendations to IDA 6.05 Design of future education projects: In general, future projects should focus on the one or two major problems facing the education system and concentrate available resources on solving these problems. This approach would make it possible to reduce and even to limit the number of project components. The simpler technological choices to be made would likewise reduce the time required to implement such projects. 6.06 Project implementation. If a number of different miniEtries are to be involved in different components, it is important to identify a project implementation unit in each ministry, ensure that this unit has the staff and resources required, and arrange for it to be supervised by the current Education Projects Directorate. This Directorate needs to be provided with considerably improved and more functional premises, as well as the administrative and office support systems currently lacking, notably a microcomputer. A special project revolving fund is also recommended to ensure steady progress. The obligation to maintain the institution set up under the First Project (ENSET) could be made a condition for a future credit. 6.07 IDA supervision of projects. Supervision missions should be more regularly made up of specialists possessing qualifications in line with the project components; these missions should be adjusted in light of difficulties inherent in the project (intervals, size of mission, etc.), and whenever necessary steps should be taken to ensure that the necessary transfer of technical information takes place, as is the case with project-related technical assistance. - 26 - 6.08 Technical assistance. This subject should be carefully studied by future appraisal missions, in particular terms of reference, 10/ the implementation schedule, and the true cost (underestimated in the First Project). It would also be useful for training and maintenance matters to be automatically included in future projects. 2. Recommendations to the Government 6.09 In preparing the Third and subsequent Education Projects, the Government should if necessary call upon IDA's financial facilities (project preparation advances) so as to enable it to push ahead with studies for civil works prior to project appraisal. 6.10 With regard to ENSET: (a) Take full advantage of the First Project to upgrade the functioning of ENSET, continue its annual evaluation, modernize the equipment and supplies in the vocational training center workshops, and conduct a yearly audit. (b) Continue to develop relations between teaching and the world of work and upgrade higher-level industrial workers at ENSET (technical training and vocational training commission). (c) Strengthen and improve maintenance at ENSET, in terms of both premises and equipment, including the road network (a maintenance budget should be provided and funded regularly). (d) Maintain a proper balance between the use of the workshops for educational purposes and their productive activities. 10/ Including submission of a report for each expert upon completion of his assignment and a program of courses for each instructor. GUINEA FIRST EDUCATION PROJECT - CREDIT 849-GUI PROJECT COmMLETION REPORE COMPARISON OF ESTIMATED 00ST AND ACTUAL COST (EICLUDING TAXES) COMPARAISONS ENTRE LES CODUTS ESTIMES A VEVALUATION ET LES CODUTS REELS (HORS TAXES) (in thousands of Sylis / en milliers de Sylis) Architects Fees / Honoraires Construction Furniture / Mobilier Equiplment / Equipment At appraisal At appraisal At appraisal At appraisal (estimation h (estimation A (estimation h (estimation & 1'6valuation) 116valuation) 1'4valuation) 1'4valuation) without with Actual without with Actual without with Actual without with Actual conting./ conting./ cost/ Dif. conting./ conting./ cost/ Dif. conting./ conting./ cost/ Dif. conting./ conting./ cost/ Dif. sans avec coat 3/2 sans avec coat 3/2 sans avec coOt 3/2 sans avec coOt 3/2 impr6vus imprdvus re61 96 imprus impr4vs red 96 impr6vus impr6vus re#1 96 impr6vus impr6vus reAl 96 s 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 Tl ) 1.100 1.100 14.400 17.995 1.400 1.742 ) 5.000 6.278 IPS - A ) ENSET 900 900 12.200 15.246 600 747 ) 3.028 -13 8.000 10.045 IPS - GC ) 1.300 1.300 16.700 20.869 800 995 ) 8.000 10.045 Staff housing/logement 1.100 1.100 14.300 17.870 2.200 2.738 1.940 -30 - - Subtotal/Sous-total 4.400 4.400 3.388,4 -23 57.600 71.980 79.292 +10 5.000 6.222 4.968,0 -20 21.000 26.368 40.387 +53 Educational Planning/ Planificat. de 1'6duc. - - - - 200 249 233,6 -6 1.000 1.256 0 - Project Management/ Gestion du Projet 3.842.8 - - - 200 249 134.0 -46 1.000 1.256 6.277 +400 Total 4.400 4.400 7.231,2 +64 57.600 71.980 79.292 +0 5.400 6.720 5.335,6 -21 23.000 28.880 46.664 +61 Total in US$ (000) 377,7 4.141,7 278,7 2.437,4 o GUINEA FIRST EDUCATION PROJECT - CREDIT 849-GUI PROJECT COMPLETION REPORT COMPARISON OF ESTIMATED COST AND ACTUAL COST (EXCLUDING TAXES) COMPARAISONS ENRE LES COUTS ESTIMES A VEVALUATION ET LES COUTS REELS (HORS TAXES) (in thousands of Sylia / en milliers de Sylis) Technical Assistance / Fellowships / Operating Costs / Total Assistance technique Bourses Frals de fonction. At appraisal At appraisal At appraisal (estimation A (estimation A (estimation h 114valuation) 11'4valuation) Actual 116valuation) without with Actual without with Actual cost/ without with Actual conting./ conting./ cost/ Dif. conting./ conting./ cost/ Dif. coGt conting./ conting./ cost/ Dif. en sans avec coGt 3/2 sans avec coft 3/2 re4l sans avec coOt 3/2 USS impr6vus impr4vus re(l 96 imprivus impr6vus ree) 96 impr4vus impr4vus re4l 96 0 1 2 3 4 1 2 3 4 1 2 3 4 IFI ) 31.200 42.120 23.815,7 -44 4.000 5.200 7.387,8 +42 57.100 74.435 PS - A ) ENSET - - 21.700 26.938 IPS - GC )26.800 33.209 Staff housing/logement - - 1 . 17.600 22.708 Subtotal/Sous-total 31.200 42.120 23.815,7 -44 4.000 5.200 7.387,8 -42 123.200 156.290 159.238,9 +1,8 8.317,5 Educational Planning/ Planificat. de 114duc. 6.000 8.100 5.555,2 -32 1.000 1.300 - 8.200 10.905 5.788,8 -47 302,4 Project Management/ Gestion du Projet 6.000 8.100 8.664,0 + 7 1.000 1.300 1.429,8 +10 4.848 8.200 10.905 25 +131 1.316,0 Total 43.200 58.320 38.034,9 -35 6.000 7.800 8.817,6 +13 139.600 178.100 190.224,3 +6,8 Total in USS (000) 2.986,6 460,6 253,2 9.935,9 9.935,9 ；쓰「 - 30 - ANNEX 3 GUINEA FIRST EDUCATION PROJECT - CREDIT 849-GUI PROJECT COMPLETION REPORT C9ppliance with Credit Agreement Covenants On Delay Partial Not Section Time (months) omission Done Comments 3.01 (a) Government to provide funds & x Facilities need facilities for the project improvement (b) Construction of access road to xim Quality to be improved ENSET by Dec. 31, 1978 (c) open and maintain a special x project account for local purchases (d) Replenish this account x 3.02 (a) Establish a Project Unit with x Only one accountant, a Director, Asst. Dir., Admin. but total staff of 18 Officer, 2 Accountants and 2 Secretaries (b) Employ 2 counterpart experts x2m and an equipment consultant 3.03 (a) Recruit qualified consultants X Unesco contract for Parts B and C (b) By June 30, 1980, submit a x training program for personnel of the Project Unit and the planning office within MESRS (c) Select candidates for fellowships with due care 3.05 (a+b) Evaluate the modular training x Complete report is programs (Part C) by June 1983 lacking 3.07 (c) Prepare a preliminary x evaluation of the project by December 30, 1983 3.08 Acquire a site for the project x institutions 4.01 (c) Retain expenditure records for x inspection by IDA through June 30, 1984 4.02 (1) Arrange for audit of project x Properly done accounts by Ministkre du Contr8le d'Etat (Sections 3.01 (c), 4.01 (a) and (b)) (ii) Submit this audit to IDA with x Properly done a separate report from the Minist4re du Contr8le d'Etat 4.03 (1) Buildings, equipment and x This provision should access roads are adequately be followed up on after maintained (Part A of the final evaluation. Project) - 31 - ANNEX 4 GUINEA FIRST EDUCATION PROJECT - CREDIT 849-GUI PROJECT COMPLETION REPORT COMPARISON BETWEEN FORECAST AND ACTUAL AREAS (COMPAMA00ON RETMSE StfUESNPEVffiEl -I"T Uii TES) Surfaces Surfaces Diffen rb9ues construites %T Administration ENSET 198 226 +14 IPSA 135 321 + 4 IPSGC 173 Sous total/ Subtotal 506 547 + 8 General + Common Services/ Locaux g6ndraux/Services communs Documentation 120 95 Multipurpose room/ Salle polyvalente 120 152 General store/ Magasin g6ndral 600 294 Garage/ Garage 300+60 Not Built/ Non rdalisd Custodian/ Gardien 20 30 Transformer/ Transformateur 12 68 Cloakrooms + Toilets/ Vestiaires sanitaires 120 504 Infirmary/ Infirmerie 32 30 Subtotal/ Sous total 1.384 1.173 -15 Theory Classrooms/ Locax d'enseignement thdorique ENSET 940 619 IPSA 240 313+319 IPSGC 360 313+300 Subtotall Sous total 1.540 1.864 +21 Practical Classrooms/ Locaux d'enseignement pratique IPSA 1.224 1.160 IPSGC 1.460 2.259 Subtotal/ Sous total 2.684 3.419 +27 Staff Housing/ Logement de Cadres 3 four bedroom dwellings/ 3 logements de 4 chambres 360 468 12 three bedroom dwellings 12 logements de 3 chambres 1.200 1.440 Subtotal/ Sous total 1.560 1.908 +22 TOTAL 7.674 8.911 +16 - 32 - QUINEA ANNEX 5 FIRST EDUCATION PROJECT- - CREDIT 849-GUI PROJECT COMPLETION REPORT NATIONAL TEACHER TRAINING SCHOOL FOR TECHNICAL EDUCATION (ECOLE NATIONALE SUPERIEURE DE L'ENSEIGNEMENT TECHNIQUE (ENSET)) Upgrading of technical instructors a/ Training Assistant Applied Vocational Training Conter (Recyclage des instructeurs techniques) Technical Instructors Initial Training for Skilled Workers (Formation Instructeurs 2 Yetre adjoints techniques) (CFP d'application: Formation initiale d'ouvries qualifiés (2 ans)) tiret Class 2nd Class (Première (Deuxième Promotion Octobre promotion) promotion) Total 1982/83 1982 1984 Total 1984 * 1980/81 1981/82 Max. 1. General mechanics 8 3 11 7 11 5 16 15 (Mécanique générale) 2. Auto mechanics 6 - 6 10 7 0 7 15 (Mécanique auto) 3. Velding 4 14 18 8 4 6 10 15 (Soudure-chaudronnerie) 4. Electricity 9 12 21 10 17 V 25 15 (Electricité) 5. Masonry 4 12 16 14 5 1 18 15 (Maçonnerie) 6. Corpentry 9 13 22 11 13 6 19 15 (Menuiserie) 7. Plumbing 7 8 15 il 9 14 23 15 (Plomberie) 8. Metalwork 4 2 6 7 i1 6 17 15 (Construction) métallique 9. Public orks - - 7 10 3 13 15 Equipmant (Engins T.P.) Total 51 64 115 85 82 66 148 (dont 3 (dont 8 (dont 7 (dont 15 filles) filles) filles) filles) Percentage Passing Exam (Pourcentage de 100% 100% 100% 66% 42% réussite aux eaman$) Actuel enrollment 51 6k 115 125 156 135 (Effectifs réels) Teachers (Encadrement) 24 22 Workshop teachers (Encadrement ateliers) 13 Observations : / Upgrading was discontinued in 1984 due to shortage of staff sufficiently trained to justify upgrading. ENSET thus bas to provide initial training for instructors. All the upgraded instructors are sent back to teach in the 15 Vocational Training Centera (CFP). Le recyclage n'est plus possible en 1984 car il n'y a plus de cadres suffisement formés pour être recyclés. VENSET doit donc fair de la formation initiale de cadres instructeurs. Toue les instructeurs recyclée sont retournés enseigner dans les CFP (15 centres). b/ The dropout rate increased as applicants vers recruited et lover and *ower level, often from videy varying backgrounds. las opérations ont augunté avec un recrutement à un niveau de plus en plus bas et souvent hétérogène. bot * Rentrée le 16 octobre 1984 - 33 - ANNEX 6 GUINEA FIRST EDUCATION PROJECT - CREDIT 849-GUI PROJECT COMPLETION REPORT SUMMARY OF TECHNICAL ASSISTANCE Esiated/CtUal Staff/Months Staff/Months Difference (Moli/Cadres) (Mois/Cadre) A. Experts Chief Adviser 42 42 (Conseiller Technique Principal) M6canique/Mechanices 30 25 Estimated cost Electricity/Electricit6 30 25 (Coat estim6 SEU 2.5000.000) Welding/Soudure 30 28 Automechanics/M6canique Auto 30 14 Actual Cost US$ Masonry/Maronnerie 30 26 (CoOt Mel $Et 1.986.518) Carpentry/Menuiserie 30 28 Metalwork/ 30 26 Unit cost US$/ Construction m6tallique expert-month (+12%) Plumbing/Plomberie 30 26 Coft Unitaire $EU 5.600/ Diesel/Engin TP 30 $1 moi2/expert Subtotal 312 243 -69 Project Unit/Bureau du Projet Technical adviser 36 36+ (Conseiller Principal) Architect/Architecte 24 24 Educational Planning/ PlanificatifonEduca-tion Expert 24 2 (pour 6) Consultants 36 17*5 Total 432 322.5 -109.5 B. Bourses/Fellowsbips ENSET Estimated cost US$ Training of Instructors 81 81 (9 x 9) (CoOt estim4 $EU 300.000) (Formation des Instructeurs) 81 72 (9 x 8) Actual Cost US$ (Cott R6el $EU 460.572,75) Director/Directeur ENSET 0 3 Unit cost US$/ Methodology 0 6 (2 x 3) fellowship-month (+156%) (Mdthodologie) (Coat Unitaire $EU 2.132/ mois/boursiers) (+156%) Project Unit/ Busreau dui Projet (PTU) 1 Public Works Engineer (3x24) 72 ) (Ing6nieur des Travaux) ) 3 Site foreman ) (Surveillants de Chantier) ) 28 1 Offset operater ) (Op6rateur "Offset") ) Planning/Planification (2x24) 48 16 (2 x 8) Estimated cost US$ 10 (1 x 10) (Coft estimd $EU 240.000) Actual Cost US$ (Codt Rel $EU 290.000) - 34 - ANNEX 7 Page 1 of 3 GUINEA FIRST EDUCATION PROJECT - CREDIT 849-GUI PROJECT COMPLETION REPORT EDUCATIONAL PLANNING A. Objectives The first objective was to strengthen the planning office of the Ministry of Education (MESRS) by (i) improving statistics and the analysis of manpower and training needs in the main sectors of the economy, including agriculture and industry; (ii) preparing criteria for the development of agricultural and technical training institutes; and (iii) providing fellowships in planning and statistics (4 man-years). The second objective was to prepare agricultural and/or technical training projects. B. Implementation 1. With IDA's agreement, Unesco was charged with implementing Part B of the project. To this end, a number of missions were sent to Guinea: - The first mission visited Guinea in May 1982, August-October 1982 and January/February 1983 and submitted its report in March 1983. - The second mission surveyed the employment situation in Guinea between May 1982 and June 1983, resulting in a 153-page report. - The third mission, which visited Guinea in January 1983, produced a report in July 1983 on agricultural education and training. 1/ 2. First mission report This report bore the title "Strategy for Development of Education and Training, 1982-2000. Human Resource Planning. Project 700 Guinea 10." (Stratfgie de dfveloppement de l'iducation-formqtion, 1982-2000 - Planification des Ressources Humaines. Projet 700 Guinfe 10.) This 184-page report, with 71 annexes: (a) analyzes the current situation from the socioeconomic, demographic and educational points of view (including vocational training and secondary education); 1/ This mission was part of an agriculture sector study and financed by Agriculture Division D (WAPA D). ANNEX 7 Page 2 of 3 (b) defines, on the basis of expected population growth and chqnges in the sectoral distribution of activity, the demand for skilled workers, technicians and professional staff up to the year 2000; (c) draws conclusions and puts forward recommendations to the Government. Ths key observation in relation to this report concerns the fact that its conclusions will need to be adjusted to take account of deviations between assumed population growth rates and the actual size of the population as revealed by the planned census. This presupposes a unit with adequate statistics at its command before a major national census is organized. 3. Second mission report This report, which analyzes the results of a lengthy survey of employment in Guinea, studies the total labor force by branch of activity and changes in occupational categories. It puts forward recommendations for human resource planning, coordination of services, and establishment of an interministerial committee -- this last has already been done by decree. The report has already served and will continue to serve as a basis for discussions on the need to adapt training to employment and to the country's development. 4. Education and agriculture This report, prepared by Unesco in July 1983 under the title "Agricultural Education and Training" (Enseignement et formation agricoles), was based on the work of the Unesco mission that visited Guinea in January 1983. The report discusses the structure, curricula, methods and situation of agricultural education and arrives at the conclusion, following a comparison with the needs of the sector, that it involves too many people. These ideas were taken up in an IDA agricultural sector study which made use of the same Unesco expert. This IDA report (dated April 15, 1984) states, inter alia, that "the lack of adequate institutions and qualified staff able to draw up and implement appropriate rural development policies has deprived the smallholder sector of significant support services." In other words, insufficient staff have been assigned to providing extension services to farmers. The report goes on to say: "while educational standards remained low, there was little evidence of any adjustment of the overly ambitious objectives of education to actual manpower needs: this has resulted in overmanning and duplication of functions in government departments and a high cost of maintaining essentially unproductive staff." Among other measures, the report proposes agricultural sector planning. It recommends in particular that the Ministry of Agriculture have a Planning and Statistical Unit -similar to that recommended for the Ministry of Education (MESRS). Other recommendations include: (a) reorganization of agricultural extension; (b) better coordination between training and research; - 36 - ANNEX 7 Page 3 of 3 (c) dissociating the curriculum for professionals from that for technicians; (d) reducing the number of agricultural students; (e) upgrading of professionals. This new strategy is based in its entirety on the studies suggested by Part B of the First Education Project. In short, all of the foregoing represents a delayed application, to be strengthened by the Second Education Project. - 37 - ANNEX 8 GUINEA FIRST EDUCATION PROJECT - CREDIT 849-CUI PROJECT COMPLETION REPORT CONTENT OF SECOND EDUCATION PROJECT The object of the Second Education Project is to continue the First Project in terms of both objectives and resources, by continuing to develop vocational training. The main objectives of the Second Project in fact supplement those of the First Project, as follows: - training of skilled manpower for industry; - development of Guinea's capacity to plan and train manpower. Part A of the Credit Agreement provides the following support to vocational training: (i) support for ENSET's (formerly ISFORPET) training programs; (ii) improvement and expansion of three vocational training institutes (at Lab6, Kankan and TZ9r6kor); and (iii) establishment within ENSET of a Central Supply Unit to supply equipment to the vocational training centers (formerly known as IPS). Thus the project represents a continuation of the financial support directed in the First Project to the ENSET complex including its two demonstration schools and the training of instructors from the other vocational training institutes. Such, then, has been the impact of Part A of the First Project. Part B of the Second Project deals with Educational and Human Resources Planning, through: (a) establishment, within the Ministry of Higher Education and Scientific Research, of an Educational Planning Directorate; and (b) strengthening of the Education and Training Division, responsible for the development of human resources. These two steps are a direct outcome of Part B of the First Project. Parts D and E of the Credit Agreement provide not only for the financing of continuing education seminars but also for the preparation of a Third Education Project. This further project would include a component for continued assistance to vocational training through advanced training of staff of industrial enterprises already trained under the First Project. Note: Part C of the Second Project relates to another sector. -l - - - i .......... 1. pa 1 pap W ~ tot r & * 8 i i & l4 ta GR .. . . . . . . . . . . . . . . . . .... .... . .. 6 UNN 긷 JORD 13575R A i ri Koxema! [,4 DABOIA,; Y KUrkar, l va-zr, L E 0 N E SMANDOu GueCkedou Macenta Ibe,eciou )N PROJECT COTE B E R l A DIVOIRE N'Zerekore "x f* --! 11 N,,ýý B A Yekepa Yomou NnVFMAPP OPP