Document of The World Banik FOR OFFICIAL USE ONLY Report No. 7244-CD STAFF APPRAISAL REPORT REPUBLIC OF CHAD EDUCATION REHABILITATION PROJECT July 14, 1988 Population and Ruman Resources Operations Division Sahelian Department AFRICA REGION This document has a restricted distributon and may be used by rients only in the perfomsance of thewr ofcbl duties. Its contents may not otherwse be disclosed withut World Bank autorizaon CURRENCY EQUIVALENTS Currency Unit - CFA Francs (CFAF) US$ - CFAF 275 (February 1988) CFAF 1 Million - US$ 3,636.36 MEASURES 1 m 1.09 yd. 1 m2 - 10.76 sq. ft. 1 km2 = 0.38 sq. mi. ABBREVIATIONS AND ACRONYMS AfDB African Development Bank (Banque Africaine de Developpement) AFVP Association Francaise des Volontaires du Progres (French Association of Volunteers for Progress) APE Association des Parents d'Eleves (Parents' Association) BEPC Diplome d'Etudes du Premier Cycle (General Secondary School Diploma) BREDA Bureau Regional pour l'Education et le Developpement (UNESCO Regional Office for Africa) CED Council for Educational Development (Conseil pour le Developpement de l'Education) CI Community Initiatives (Initiatives Communautaires) CRFC Centre Regional de Formation Continue (Regional In-service Training Center) DNPE Direction Nationale des Projets d'Education (National Directorate for Education Projects) ENI Ecole Nationale des Instituteurs (Primary Teacher Training College) FAC Fonds d'Aide et de Cooperation (Assistance and Cooperation Agency) FRC Financial Rehabilitation Credit (Credit de Rehabilitation Financiare) IP Implementation Plan (Plan d'Execution) MEN Ministere de l'Education Nationale (Ministry of National Education) NGO Non Governmental Organization (Organisation Non Gouvernementale) OED Operations Evaluation Division (Division des Operations - Evaluation) PPF Project Preparation Fund (Fonds de Preparation de Projet) SOE Statement of Expenditures (Etat des Depenses) FISCAL YEAR SCHOOL YEAR January 1 - December 31 October - July F0R OFFICIAL USE ONLY REPUBLIC OF CHAD EDUCATION REHABILITATION PROJECT TABLE OF CONTENTS CREDIT AND PROJECT SUMARY. . . . . . . . . . . . . . . . . . . . . . . . I 1I. THE EDUCATION SECTOR . . . . . . . . . . . . . . . . . . . . . . . . 1 A Overview . . . . . * * 1 1. Severe Constraints on Sectoral Rehabilitation and Development . . 2 . . . . . . . . . . . . . . . . . . . 2 2. _.or Quality and Internal Efficiency of Primary Education. . . . . . . . . . . . . . . . . . . . . . . . 3 3. Weak Capacities for Sector Management and Planning . . . 4 C. The Government's Sector Strategy . . . . . . . . . . . . . . 5 D. The Bank Group's Role . . . ............. .... 6 III* THE PROJECT . . . . *. . . . . . . . . . . . . . . . . . . . . . . 7 A. Project Objectives and Description . . . . . . . . . . . . 7 1. Policy Framework . . . . . . . . 8 2. The Rehabilitation of Primary Education . . . . . . . . 9 3. Rehabilitation of Sectoral Management and Planning . . . 14 B. Project Cost and Financing Plan. .&. . . . . . .... . . . 16 C. Project Implementation . . . . . . . . . . .. . . . . . . . . 16 1. Preparation, Management and Institution Building . . . . 16 2. Procurement, Disbursements and Special Account . . . . . 17 3. Accounting, Auditing and Reporting . . . . . . . . . . . 2n IV. PROJECT BENEFITS AND RISKS ...... .............. ...... 20 V. AGREEMENTS REACHED AND RECOMMENDATIONS . . . . . . . . . .. . . . . 21 This report is based on findings of an appraisal mission from the Unesco-World Bank Cooperative Program that visited Chad in February 1988. The mission members were Richard Sack (Mission Leader/Education Plamner/ Consultant), Ben Mady Cisse (General Educator/UNESCO), Patricia Dambrine (UNESCO intern), Yohannes Habtu (Economist/Consultant), and Ane Stam (Architect/Consultant). This report was prepared by Richard Sack and completed by Francoise Delannoy (Task Manager), Bernard Abeille (Architect/ Implementation Specialist) and Diana Risen (Operations Assistant). Ninette Sage-Vargas was responsible for the processing of the report. This document has a rsticted distibution ind may bc used by recipients onl in the performance of their officia dutis Its cotents may not oherie be disosd withot Word au n. TABLE OF CONTENTS (Cont'd) ANNEXES 1 Basic Data 2-1 Structure of the Education System 2-2 Organization Chart of the Ministry of National Education 2-3 Statistical Profile of the Education System 2-4 Comparative Education Indicators 2-5 Primary Education Projections: Enrollments, Teachers and Costs 2-6 Budget of the Ministry of National Education, 1986/87188/Examen du Budget du Ministere de l'Education Nationale, 1986/87188 3-1 COvernment Policy Letter, Annual Implementation Plan and Review Criteria 3-2 Support to Community Initiatives for Primary School Construction/Renforcement des Initiatives Communautaires pour la Construction Scolaire 3-3 Provision of Didactic and Pedagogic Yiaterial/Renforcement des Materiels Didactiques et Aides Pedagogiques 3-4 Support to Teacher Training and Supervision/Developpement de la Formation, de la Supervision et de l'Encadreuent des Enseignants 3-5 Support to Education Sector Management, Planning and Policy Development/Renforcement des Capacites de Gestion, de Planification et d'Elaboration de Politique Educative 3-6 Regular Salary Payments for Civil Service Teachers 3-7 Project Management and Coordination 3-8 Project Costs and Financing Plan 3-9 Implementation Schedule 3-10 Project Monitoring/Dispositif de Suivi 3-11 Summary of Foreign and Local Specialist Services 3-12 Summary of Foreign and Local Fellowships and Training 3-13 Procurement Procedures 3-14 Disbursement Profile 3-15 Summary of Contributions from Government and Local Communities Map: IBRD 20901 I CREDIT AND PROJECT SUMMYAR Borrower The Republic of Chad Beneficlarys Ministry of National Education Credit Amount: SDR 16.2 million (US$22.0 million equivalent) Terms: Standard, with 40 years maturity Proleot Description: The project would rehabilitate primary education and the sector's management/planning capacities while laying the groundwork for future development. Rehabilitation is urgently needed to ensure the effectiveness and sustainability of the investments made by local communities during the war years, when Government support was interrupted, and to facilitate planning for long-term, balanced expansion. The Project would help the Government to gradually develop and implement a policy framework aimed at (a) increasing sectoral resources; (b) promoting their cost efficient use; and (c) avoiding the emergence of major sectoral distortions. Within this context, the project would: 1. Rehabilitate prtimary education with limited increases in public recurrent expenditures bys (a) assisting and encouraging local community initiatives through the provision of financial and technical support for the reconstruction and/or rehabilitation and equipping of about 1,000 existing classrooms in two zones of the country; and (b) Improving the efficiency and quality of schooling nationwide through (i) the provision of about 600,000 low-cost books and teacher guides, (il) the training of about 1,750 'supplementary" teachers employed directly by the local communities; and (4ii) a strengthening of teacher supervision and support including the training of 600 school directors; 2. Rehabilitate sector manaaement and plannina capacities by: (a) strengthening MEN's capacities to plan and manage its resources, through reinforcement of the services responsible for personnel management, budget preparation/execution/control, planning, and strategy development/monitoring; and (b) strengthening MEN's capacities to manage and implement projects through continued support to the recently established National Directorate for Education Projects. ii SUMMARY OF PROJECT COST ESTIMATES (net of taxes and duties) Estimated Costs 1/ Local Foreign Total ------(USS million)------ 1. Rehabilitation of Primary Education: (a) Support to Community Initiatives for the reconstructionlrehabilitation and equipping of about 1,000 classrooms 2.3 7.2 9.5 (b) Provision of textbooks, teacher training and teacher supervision 2.6 4.9 7.5 Sub-total 4.9 12.1 17.0 2. Rehabilitation of Sector Management and Planning Capacitiess (a) StrengtheninuL MEN's capacities to plan and manage resource use 0.2 1.4 1.6 (b) Project directorate 0.1 2.5 2.6 Sub-total 0.3 3.9 4.2 Total Base Costs 5.1 16.0 21.1 Physical Contingencies 0.2 1.2 1.4 Price Contingencies 0.7 2.0 2.7 Sub-total 0.9 3.2 4.1 Total Prolect Costs 6.0 19.2 25.2 _tm i Net of taxes and duties, of which the project is exempt. Financint Plan Local Foreign Total --------(US$ million)---- IDA 3.9 18.1 22.0 Government 0.6 0.8 1.4 Local Communities (in kind) 1.5 0.3 1.8 TOTAL 6.0 19.2 25.2 Note: Totals may not add up due to rounding. Estimated IDA Disbursements: IDA FISCAIt YEAR 1989 1990 1991 1992 1993 1994 ----------(US$ million)----------------- Annual: 5.7 4.4 4.7 3.8 3.4 - Cumulative$ 5.7 10.1 14.8 18.6 22.0 22.0 Economic Rate of Return: Not Applicable Pro1ect Benefits and Risks: The Project would invigorate the country's education sector, while providing Government with both the means and the tze to engage La sectoral planning. Developing a partnership between the communities and the Government for the rehabilitation of pr_mary education would provide a new impetus for sectoral development without placing excessive pressure on Government's recurrent budget. Quality Improvements in primary education vould have a positive effect on pupil achievement and internal efficiency at all levels of the educatio- system, and eventually on labor productivity. Strengthening of sectoral management and planning would ensure a cost effective allocation and use of resources, as well as the elaboration of a sectoral strategy adapted to the needs of the economy and the resource constraints of the country. The main risks are: (a) the continuation or intensification of the war, which would continue to deprive the sector of needed resources; (b) a decrease in community inputs, in the face of possible centralizing tendencies by MEN following a sudden influx of resources; and (c) the limited absorptive capacities of both MEN and the communities. The latter two risks have been minimized through appropriate design (eligibility criteria for project funding, sharing of responsibilities, training and monitoring). REPUBLIC OF CHAD EDUCATION REHABILITATION PROJECT I. INTRODUCTION 1.1 The Government of Chad has requested IDA assistance in financing a project aimed at meeting the urgent need for rehabilitation of primary education and the education sector's institutional capacities while laying the groundwork for its balanced development. Total project Costs are estimated at US$25.2 mi1lion equivalent (net of taxes and duties), with a foreign exchange component of US$19.2 million. The Government would contribute US$1.4 million, parental associations would contribute in kind or in cash the equivalent of US$1.8 million, and the remaining US$22.0 would be financed by IDA. 1.2 The project would be the fourth IDA operation in the education sector. After an IDA reconnaissance mission (July 1987), which established its broad outline, the project was identified, prepared and appraised by three missions from the UNESCO-World Bank Cooperative Program. The Basic Data sheet is in Annex 1. II. THE EDUCATION SECTOR A. Overview 2.1 The education system consists of: (a) a six-year primary cycle; (b) four years of lower, and three years of uspper, secondary schooling; and (c) higher education at the University of Chad in N'Djamens or abroad. Teachers are trained at the upper secondary level for service in primary schools and at the university level for service in the secondary schools. There are five Primary Teacher Training Schools (ENI) and twenty regional in-service teacher training centers (CRFC). All formal schooling is administered by the Ministry of National Education (MEN). As a result of the war years, however, the local communities have spontaneously assumed major responsibility for the maintenance and development of schooling, as well as for financing of school construction and employment of "supplementary' teachers who presently comprise about 452 of all primary school teachers. Koranic education also exists throughout the country and there is an undetermined number of private Arabic schools teaching religious and literary subjects. There are twelve vocational training centers administered by MEN and others administered by other Ministries (Labor, Agriculture, Public Works, etc.). Annex 2-1 shows the structure of the education system, and Annex 2-2 provides the current organization chart of MEN. B. Main Sectoral Issues 2.2 The l&rge-scale disruption of regular Government services resulting from the period of disturbances (1979-82), and the subsequent slow recovery, have led local communities to play a critical role In the financing and operation of the sector. The provision of resources for primary schooling by the communities has been an important achievement, but this spontaneous and somewhat anarchic development raises questions of efficiency, quality standards and sustainability. It is necessary to supplement these resources 2 if minimal conditions for efficient schooling are to be met. Chad has one of the lowest primary enrollment ratios in Africa (about 452 gross, not including the Arabic schools, with a female participation rate of only 282). However, there is sustained demand for primary education, with the annual rate of increase in enrollments having averaged about 71 for the past three years. The main issues are: (a) severe constraints on sectoral rehabilitation and development, due to insufficient sector financing and uncertaint!es about the effectiveness and sustainability of the community inititivee; (b) low quality and internal efficiency of primary education, due to a dilapidated physical environment and the lack of quality inputs (textbooks, teacher training, pedagogic supervision); and (c) weak capacities for sector management and planning. These issues are discussed below. Annex 2-3 shows the statistical profile of the sector (statistics prior to 1985 are practically nonexistent), and Annex 2-4 gives comparative indicators. 1. Severe constraints on sectoral Rehabilitation and Development 2.3 Insufficient sector financina. Government financing for education is low in both absolute and relative terms. Total budgetary resources are extremely limited (only 5 percent of GDP after the cotton crisis) and heavily vulnerable to the fluctuations in vorld cotton prices. In addition, education was allocated only 11.11 of the Government's 1988 budget (11.81 of the 1987 budget), as compared to an average of 211 (in 1983) for Francophone Africa. Some 512 of the 1988 education budget is allocated to primary education (432 for Francophone Africa). The unit cost per pupillyear for primary education is estimated at US$10.8 (about 62 of per capita GNP), as compared to an average of US$49 for Francophone Africa (232 of per capita GDP). 1/ Teacher salaries account for about 96Z of the unit cost, leaving little for operations, supplies, didactic and pedagogical materials. Even then, salaries are paid at only 602 of nominal rates established in 1967 (at 1002, primary teacher salaries range from 4 to 25 times per capita GNP) and, in all but two provinces, are paid after an average of (currently) two months delay because of discrepancies between budgeted payment orders and revenue availability (this also is the case for most other civil servants). Unit cost is low partly because it does not account for the compensation provided by commnities to the approximately 2,500 'supplementary' teachers employed directly by the commmnities (this compensation varies from a nominal amount to about CFAF 20,000 per month). These teachers, who represent about 452 of all primary school teachers, can be found in all schools (about 252 of them are in the estimated 480 "spontaneous" schools, the others in the 1,320 government recognized schools); they do not have civil service status, have generally low levels of schooling, are untrained and have limited incentives (para 2.4). Government plans to pay them a CFAF 9,000 month stipend were never fully imp'tmented. The analysis in Annex 2-5 indicates that if current trends (in enrollment and rates of internal efficiency) continue, unit costs will further decline by an average of about 1.41 per year for the next five years as the share of supplementary teachers increases to a projected level of 4,076 in 1990191, or 472 of all primary school teachers. The annual 1/ These figures are based on the approved budget and do not account for the low implementation rate which is estimated at 601 for 1987. At this rate, real educational expenditures for 1987 would have been 6.91 of total budget. 3 contributions (in cash and kind) of the local communities to their schools (through the Paronts' Associations - APEs) are roughly estimated at 152 of Government's current education budget (para 2.4), or 25X of current estimations for implemented 1987 expenditures. Short-term prospects for significant improvements in Government revenues are not bright and, as the simulations in Annex 2-5 show, salary claims resulting from programmed output of the ENIs will increase 362 over the next five years. This situation leaves the Government little room for maneuver. While chese budgetary constraints bave prevented growth in secondary and higher education, thore is a potential for structural distortions at these levels, as a considerable number of secondary graduates are unemployed and the number of higher education students is large (about 2,140 in Chad and 1,850 abroad). 2.4 Precarious community initiatives. Along with other sectors, education received no Government support during the period of 1979 to 1982 when Government virtually ceased to function. In order to assure minimal basic educational services at the primary level, the local communities, generally in the form of APEs, took the initiative to maintain and even establish schools. The community initiatives, along with donor activities, assured survival of the sub-sector. Financed entirely under these initiatives, APE support to both public and private ("spontaneous") schools has included the construction of about 3,500 classrooms (or about two-thirds of the pzesent stock), the employment and maintenance of about 2,500 teachers (abc-.t 452 of the present stock), provision of supplies and materials, and school management. The extent and nature of these activities vary widely, depending mainly on local social and econamic factors. Over the past ten years, the cash outlay of the communities on sahool construction alone is estimated at US$3.3 million, representing the only domestic investment in the sector. Howe-er, the communities' poverty and lack of technical expertise do not allow the %%stablishment of adequate conditions for efficient and effective schocling. For example, in many villages the same classrooms (investment cost US$3,000 per classroom) have to be rebuilt frequently for lack of sound construction methods, good materials, and financing, leading to discouragement and high annual amortization costs (US$738 per year), taking into account costs of maintenance, repairs and replacement over a 25 year period. On the other hand, where Government services undertake school construction under current standards, the investment cost is very high (US$25,000 per classroom) for an annual amortization cost of about US$2,000 per year. This situation threatens educational standards at all levels of the system as well as the austainability of communities' willingness to continue financing education. 2. Poor quality and internal efficiency of primary education 2.5 Associated with the low level of expenditures is poor quality and internal efficiency. Repetition rates are estimated at 302 for grades one to five and the first grade drop-out rate is estimated at 202. For 1,000 pupils entering first grade only about 402 complete primary school. It is costing the system about 16 pupil-years of schooling to produce one primary school graduate. This situation can be attributed to the poor learning conditions in the schools which, in turn, are a function of the level and structure of the capital and recurrent unit costs (paras 2.3 and 2.4). Contributing factors ares (a) the dilapidated state of school buildings which are not maintained due to the communlties' limited resources and expertise, are 4 overcrowded, with an average student/teacher ratio of 60/1, and are poorly (when at all) furnished; (b) the severe shortage of textbooks in the schools where there is one full set of books for about nine pupils and where only one teacher in about four has adequate teaching materials; (c) the extensive use of supplementary teachers selected on the basis of shared values rather than qualifications (para 2.3), about 911 of whom have less than four years of secondary schooling, who have no pedagogical training and who receiv- no pedagogic supervision and support; and (d) the conditions of work of the civil service teachers whose motivation and teaching time are reduced by the delays in salary payments for about 80X of them (para 2.3) and who often mako several trips to the regional centers in quest of their salary. Annex 2-5 shows the impact of this situation on enrollment rates and costs. 3. Weak Capacities for Sector Management and Planning 2.6 MEN is faced with two pressing and complementary needs: (a) ensuring current operations in the context of intensive efforts toward rehabilitation while (b) developing policies, strategies and plans for the future of the sector in the context of increasing investment from external sources and continued financing by the local communities. These needs should be met by strengthening MEN's operational capabilities while developing its capacity for more conceptual tasks. 2.7 MEN's organizational structure (in place since 1974) is poorly adapted to the needs of the current situation. Decision making is highly centralized, although the Ministry controls and mobilizes a fraction of overall sector financing and staff (para 2.3); this, compounded by difficulties in internal transport end communication, makes MEN relatively ineffective outside of the capital. The staff of about 6,000 (28Z of the civil service), including teachers at all levels and a high proportion of administrators (about 102), needs to be rationalized for increased productivity. The collection of statistics needed for planning and management is deficient, and the flow and use of available information within MEN is highly concentrated. Finally, the functions and roles of MEN's departments, services and institutes are poorly defined and articulated, leading to inefficiencies and redundancies at the central level and with the regional level (7 principal inspectorates). 2.8 Weak sectoral management and planning. Lack of training and resources seriously impairs MEN's capacity to effectively accomplish its administrative, managerial and planning functions. Most MEN administrative staff were recruited from the ranks of the teaching force and have little or no training in administrative matters and managerial methods. They lack the material means (supplies and transport, for example) to implement their assigned tssks. All (with the exception of directors) are paid at 602 of nominal 1967 salaries and most of those outside the capital experience payment delays. Areas of particular concern are: (a) budget preparation, implementation and control procedures, which are inaccurate, less than transparent, and cumbersome, resulting in erratic projections, unsubstantiated cuts, and a low rate of implementation; (b) personnel management, which should be made more efficient in order to increase productivity (improvement of the two functions of budget and personnel, combined with increased liquidity availability, would also be essential to eliminating the delays in salary payment); and (c) educational planning, 5 which needs to be strengthened in order to rebuild a reliable statistical base for current rehabilitation efforts and to develop analytical capabilities. Improvement is required in these areas of concern in order to develop, on the basis of appropriate policy options, a long-term, global strategy aimed at rehabilitating the sector in line with the economy's human capital needs, and the country's aspirations and resource availability. Such a strategy would be a valuable tool for aid coordination and the mobilization of additional external and domestic resources. 2.9 Limited prolect implementation capacity. Project implementation until recently was affected by a high staff turnover, the absence of a full time project director, and the scarcity of experienced managers and accountants. This has resulted in costly delays, while supply-driven donor activities proliferated without systematic planning, with little or no attention being given to broader or long term implications. Although in recent months, there has been a marked improvement in the quality and commitment of the staff, and a senior project administrator has been internationally recruited, there is a need to build on this and to further strengthen the capabilities of the recently created National Directorate for Education Projects (DNPE) to ensure that all aspects of future projects (policy, physical, institutional) are implemented efficiently, within the proposed time and cost frame. C. The Government's Sector Stratela 2.10 There is a broad consensus in the Government thats (a) education is an investment in human resources which should be a top priority (official budget figures place MEN in third position, behind the Ministry of Defense and the Presidency, with 35.11 and 12.61 of Government's budget, respectively); (b) there is a need to consolidate the gains of the past few years that have come from the initiatives of the local communities and on which broader rehabilitation efforts should be based; (c) the current state of the education system presents an opportunity to reshape the system on the basis of well-considered policies; (d) primary education is the first priority, given (i) its overall impact on development, (ii) the strong demand for it, (iii) its scope for improvement with minimal impact on the recurrent budget, and (iv) the time lag needed for improvements at higher levels (studies and reforms); and (e) the elaboration of a long term, global strategy is the next priority. Government recognizes that rehabilitation needs to include both the development of a policy framework and institution building. A 'Cellule de Reflexion sur le Developpement de l'Education' (CED) has recently been established to steer that process. Strengthening primary education would have equity and efficiency effects by reaching out into the rural areas and improving quality not only at the primary level, but also at higher levels. To achieve this objective, MEN policy is to encourage the community initiatives and the supplementary teachers by providing development resources to the former and training for the latter, including admission to the primary Teacher Training Colleges (ENIs) for some of the more qualified. For secondary and higher education, the Government's policy is to adjust the flow of graduates to the absorptive capacity of the labor market and to restore quality. Other forms of training -- vocational, apprenticeship, and to a lesser degree, technical -- would be emphasized in search of a low-cost, flexible formula developed jointly with private sector employers. 6 2.11 Although not fully elaborated, Government's strategy is realistic, recognizes its limited room for maneuver and warrants support. The proposed project would constitute a first step in its implemenitation in that it would sustain the process of community-based sectoral development while allowing Government to consolidate its capacities to organize the deployment of local resources, regulate the delivery of educational services, and formulate long- term policies and plans. D. The Bank Group's Role 2.12 By March 31, 1988, IDA commitment to Chad amounted to US$125.09 million for 20 operations; in addition, a US$47.0 million credit for a road reconstruction p.oject was approved on April 26, 1988. These included three Credits for education -- Credit 126-CD for US$2.2 million, signed in 1968; Credit 251-CD for US$2.7 million, signed in 1971; and, Credit 811-CD for US$8.3 million, signed in 1978. These projects have supported primary teacher training, agricultural technician training, vocational training, technical secondary education, educational materials for primary education and education management and planning. The first two education projects were completed in eight years (each four years later than planned'. The third, which was interrupted during the war, was reactivated in June 1985, and is still being implemented; it is expected to be completed by June 1988, following two one-year extensions of the closing date which have eventually brought about substantial improvements in management (para. 2.9). The completion and audit reports (PCR: March 30, 1979; OED Project Performance Report No. 2616 of July 31, 1979) elicited the following lessons: (a) Government experienced difficulty implementing the projects and meeting its financing obligations toward the projects and the operation of project institutions; (b) project institutions were inadequately staffed; (c) the projects were over-ambitious in concerning themselves with components in agricultural, technical and general education dispersed in three different towns; (d) there was insufficient supervision by IDA missions which relied largely on consultants; and, (e) more donor coordination could have provided financing for needed technical assistance. These lessons have been incorporated into the design of the proposed project. 2.13 IDA's current country strategy concentrates on supporting Government efforts toward rehabilitation at the macro and sectoral levels with a view to assisting it to establish a framework for balanced development. In line with this approach, the proposed project would complement, and implement at the sectoral level, actions initiated at the macro level by the proposed Financial Rehabilitation Credit (FRC) including improvements in public finance management and the development of a sector strategy covering an investment program, as well as policy and institutional improvements. It would address the need for primary education rehabilitation, beginning with two zones of the country, and for institution-building. A series of repeater projects -- possibly financed by other donors -- would be needed to achieve countrywide coverage and to further the process of policy and institutional development, while a policy-based sector operation is proposed for FY92. 2.14 Donor coordination. There is widespread donor support for the Government strategy and, pending its elaboration, the development of the proposed operation has played an important role in promoting a unified apr oach to the rehabilitation of primary education. Coordination with the 7 French Fonds d'Aide et de Coop;ratton (FAC), whose aid strategy has been centered on consolidating the fragile achievements of the Chadian education system in recent years (management, Government teacher training system, textbooks) was instrumental in allowing speedy preparation of this operation. In addition, FAC will supplement selected project items (paras. 3.4, 3.9, 3.13), namelys (a) books equal in number to those in the project's textbook component; and (b) specialist services for (i) teacher training and supervision and (ii) the strengthening of personnel management; these inputs have not be included in the costs of the proposed project. The Association Frangaise des Volontaires du Progras (AFVP) will contribute six volunteers to work on the physical rehabilitation component (para 3.3), which was developed in close coordination with an on-going Swissaid (an NGO) project. The African Development Bank (AfDB) is: (a) preparing a project, designed to be complementary to the IDA credit, to rehabilitate secondary/higher education and to support primary education in the northernmost region of Chad; and (b) financing studies on (i) MEN's organization and methods (para 3.12), (ii) educational costs and financing, and (iii) the relationship between education and the labor market. The European Development Fund is preparing an integrated development project covering a region close to the capital that will include a primary education component similar to that financed by IDA. UNDP is financing the preparation of the Human Resources Round Table (FY89), which will provide a focus for the development of a full-fledged sector investment strategy (para 3.14) and lead to a definition of the roles of the various donors. III. THE PROJECT A. Proiect Oblectives and Description 3.1 The proposed project is intended to meet the urgent needs of rehabilitation while paving the way for future development. It is designed to: (a) assist Government to gradually develop and implement a policy framework aimed at alleviating the financial and efficiency constraints in the sector; (b) rehabilitate primary education by (i) providing financial and technical support to local communities in two zones for the replacement or rehabilitation and equipping of their primary schools; and (ii) improving the efficiency and quality of primary schooling countrywide through the provision of low cost teaching and learning materials to schools, the training of eligible supplementary teachers, and strengthened supervision for teachers; and (c) rehabilitate the planning and managerial capacities of MEN by reinforcing (i) its organization and management, budgeting, personnel management and planning functions, including the introduction of streamlined procedures aimed at ensuring regular and timely salary payments for civil service teachers; and (ii) its directorate responsible for project implementation and management. 1. Policy framework 3.2 Despite the emergency nature of this operation, the Government wishes to establish future sectoral development on a sound policy basis so as 8 to (a) gradually increase sector financing, (b) promote cost-effective use of the increasing resources which will be made available to it in the years ahead through budget support, including assistance through IDA's proposed FRC in FY89, and (c) avoid the emergence of major distortions in resource allocation and use in the education sector. To achieve these objectives, the following basic principles, trends and target zones have been agreed; they have been specified whenever possible for the first project year (PY1); for the following project years, they would be quantified more precisely on the basis of detailed sector work to be conducted during PYl: (a) To increase sector financing: (i) gradually raise the share of education in the total Government recurrent budget (presently 11.12); for PY1, MEN's budget should grow at least at the same rate as the general Government budget; if the amount of the Government budget declines, the amount allocated to education should be maintained at its 1988 nominal level (about CFAF 2,850 million); and (ii) leverage the investments of the communities and increase their productivity through appropriate financial and technical support (under the proposed project); (b) To promote cost-effective use of sectoral resources: (iii) within the sectoral budget, protect the share of primary education (51X) to develop that level of education; keep track of changes in the share of scholarships (14.6%) and endeavor to transfer this function as much as possible to external donors; increase the share of materials (4%) to improve quality; for PYI (i.e., budget year 88), the public sector financing plan supported through the FRC proposes to raise that share to 13X (from CFAF 110 to 350 million); (iv) monitor teacher recruitment and promotion so as to contain the growth of salary expenditures, ensuring regular Government teacher salary payments (at least 60% of the 1967 level) as reflected in the 1988-89 public sector financing plan formulated under the FRC, which includes Government current expenditures as the highest expenditure priority, and following agreed upon procedures (para 3.13); providing adequate incentives to supplementary teachers through admission of 200 of the more qualified among them to the existing teacher training colleges (ENI) over the life of the project, and monitoring their training under the project (para 3.6); and (v) develop at. experimental plan for testing double-shift teaching in urban areas and multigrade teaching in rural areas, to be presented at the 1989 Annual Review; (c) To avoid the emergence of major structural distortions: (vi) monitor the flow of new entrants into secondary and higher education with a view to maintaining their number near the 1988 level in secondary general education (about 2,000), law/economics and management (about 120) and arts and humanities (about 150), while encouraging students to go into appropriately designed secondary technical and vocational programs and scientific/technical higher education; and 9 (vii) agree with IDA each year on a three-year rolling Investment program reflecting the priorities set in the Government's Letter of Intention described below, and submit to IDA each year the draft annual budget law for the education sector reflecting agreed-upon budgetary targets (par, 3.21). These basic principles, which would set the stage for future policy- based operations in the sector, are established in a Letter of Intention approved by the Council of Ministers and signed on June 17, 1988 by the Minister of Plan and Cooperation. Monitoring would be the responsibility of the Minister of Education and the Director-General of MEN. At negotiations, Government gave assurances that it would implement these principles as part of the Implementation Plan (IP) which would be monitored at joint Government- IDA Annual Reviews (para 3.21). Annex 3-1 gives the Government's policy letter review criteria. 2. The Rehabilitation of Primary Education 3.3 Support to Community Initiatives (CI). In order to improve the physical environment for primary schooling, while increasing the effectiveness and guaranteeing the sustainability of the educational investments made by the local communities (usually APEs), the project would support a regionally based program to rehabilitate about 1,000 primary classrooms (about 40X replacement construction, and about 601 rehabilitation, with no increase in the number of classrooms). This component would be partly based on the pilot operation of Swissaid, an NGO that has successfully supported the CI/APE's self-help efforts over the past four years, and would draw from the experience of similar community-based, construction/ rehabilitation/maintenance programs introduced in a number of countries (Burkina, CAR, Senegal and Niger) in the region under on-going IDA-financed projects. The design, based on low-cost construction techniques relying largely on local materials and labor, is expected to allow for a 25-year economic life with limited maintenance, and to lower unit capital costs by about two-thirds of the present level for comparable standards applied by Government services for school construction. As a result, annual amortization costs are expected not to exceed US$600 per classroom. The specifics of the rehabilitation program are as follows: (a) Zones and Regions: Two zones have been selected for the project (North and South), each comprising two regions - Abeche and N'Djamena in the North, and Moundou and Sahr in the South. They have been selected on criteria of regional equity, logistics, demographics, other donor activities and, in the case of N'Djamena, proximity to MEN officials to gain their direct involvement in the development of CI/APE activities. Each region comprises two or more administrative divisions (hprefectures"). Coverage and phasing of activities in the four regions has been determined with Implementation constraints taken into account; (b) Organizational structure: In order to ensure efficient coverage of the designated regions, the component would have a three-tier structure with: (i) decentralization of operational activities at the local level, comprising two mobile field units charged with providing direct technical support to the CI/APEs; (ii) operational coordination and 10 supervision, including site identification, at the regional level with two Regional Centers to be created in Abeche and Sahr during the first two years of the project, and additional Regional Centers to be created in N'Djamena and Moundou, beginning in the third year of the project; and (iii) overall support and financial management from the Project Implementation Unit (DNPE) in MEN. Each Regional Center would report to the principal inspector, and in order to become operational would be staffed by a project-financed specialist/coordinator (senior construction specialist from Association Francaise des Volontaires du Progres - AFVP), a community organizer (volunteer AFVP) and a swall support staff. Each of the two field units would be staffed by two brigade leaders (building specialists supplied by the AFVP) and two instructors (national contractuals specialized in construction and to the extent possible experienced in community development). A coordinator (a specialist in construction with five to ten years experience in similar projects, provided by the AFVP) located in the Planning office would ensure coordination of the construction program and liaison with the Regional Centers and with the DNPE. The DNPE would be responsible for: planning, coordinating and managing procurement and logistics, and monitoring the program (including its budget); (c) Selection process: Access to project funding for construction activities would be open to all CI/APEs meeting specific eligibility criteria including: the extent and capacity (in cash and/or in kind) of CI/APE support to their school (building and teachers); a school catchment area sufficiently large to allow at least 45 pupils per classroom; skills and experience in construction methods; provision of community inputs (local construction materials, labor, fencing, sanitary facilities and teacher housing); and teacher availability; (d) Implementation strategy: Prior to launching the construction program, in the first project year (PY1), the Regional Centers and their field units would conduct sensitization and information campaigns and experiment with pilot programs involving the construction of a limited number of classrooms in the capital of each zone covered by the project. In the subsequent project years, each center is expected to intervene in a maximum of 50 communities during each two-year cycle. Construction/maintenance guides would be produced covering the use of local materials and appropriate technological approaches, describing the processes of sensitization, training, and information gathering as well as the responsibilities of the CI/APEs, a model contract and a minimal accounting plan. Applications, prepared with the assistance of the field units, would be screened by the Regional Centers and then submitted to DNPE for inclusion in the annual implementation program. Following approval by the DNPE, each application would then be the object of a simple contract between the CI/APE Support Center and the individual CI/APE, specifying the nature and extent of the support granted and the rights and obligations of both parties; (e) The communities would provide funds and/or labor in the rural areas, and would provide an increased financial contribution in the urban areas to allow for the recruitment of local artisans/contractors, while the project would provide as a matching contribution construction materials, advice and assistance to ensure good building standards. Annex 3-2 describes the construction and rehabilitation program; 11 (f) The credit would finance: (i) imported construction materials and transport necessary for the reconstruction of about 400 classrooms and the rehabilitation of about 600 classrooms in the two project zones, representirng a maximum of 65Z of total construction costs (estimated at US$6,500 per classroom) and 45% of total rehabilitation costs (estimated at US$2,000 per classroom); (ii) guides for construction/rehabilitation/repairs and maintenance; (iii) funds for small repairs and attention to accidental damage up to a maximum of 60 classrooms; (iv) school furniture and a kit of basic supplies to classrooms constructed and rehabilitated under the project; (v) specialist services (5 man-years for the national coordinator, 10 man- years for the two regional coordinators, 20 man-years for the national building instructors and 50 man-years of support staff); (vi) office space, furniture, equipment, vehicles and operating costs related to the two Regional Centers and the two field units. During negotiations, the Government and IDA agreed on the detailed implementation plan for the first year of the project, and the agreement to be reached with a volunteer association. At negotiations, Government gave assurances that by June 30, 1989, it would submit to IDA for comments the various guides on reconstruction, rehabilitation and maintenance to be produced by the project and after taking IDA's comments into account, would introduce them immediately in the two project zones. Signing of an agreement between Government and a Volunteers' Association would be a condition of disbursement for the primary school construction component. 3.4 Textbook Provision. In order to improve pupil achievement and internal efficiency (para 2.5) countrywide, the project would provide about 600,000 textbooks and teachers guides for primary education, to be matched by an equivalent supply from FAC. The resulting total of about 1.2 million books would represent one set of books in basic disciplines (reading, mathematics, basic science) per three pupils. Given the urgency of the needs, the textbooks would be those already in use, which are satisfactory for the present curriculum. A kit of pedagogic materials would also be provided for each classroom. The design of a distribution and storage system would benefit from an evaluation (financed under the PPF) of the textbook component of the Third Project which will provide information on the current distribution of books and the conditions under which they are used, including a proposal for an experimental book rental arrangement aimed at extending the useful life of the books. Distribution and storage of the books would be organized through inspectorates with further storage capacity developed in the schools. The books would be procured during the first project year (PY1) and distributed in time for the beginning of the 1989/90 school year. 3.5 The project would finances (a) the procurement of about 600,000 textbooks and teacher guides along with pedagogical materials (such as slates, rulers, notebooks, pencils); (b) the purchase of about 4,000 metal trunks for delivery and storage of the books; (c) 6 man-months of specialist services, and (d) two months of training abroad for the production of a guidebook for teachers in the use of the first grade reading book; a study that would take into account experiences in other African countries with low- cost pedagogical materials which could be produced or assembled by teachers; and the monitoring of the distribution of books and materials, including the effectiveness of the cost recovery mechanism. Annex 3-3 provides details for this component. 12 3.6 Teacher training. The weakest link in the teaching force in Chad is the group of uncertified, although experienced, supplementary teachers (para 2.3). As an incentive to the communities who finance these teachers, and to maximize the return on the proposed book investment, the project would support a countrywide training program targeted at about 1,750 of the more qualified among these teachers (combined with appropriate incentives). 21 The program would include general studies (mainly in French and mathematics), pedagogy and practice teaching, in roughly equ6l proportions. Teachers would be selected from two distinct groups of the supplementary teachers: about 1,550 who have at least two years of secondary schooling but not the first-cycle secondary school diploma (BEPC); and about 200 who possess the BEPC. Upon completion of their training course, the BEPC-holders would qualify for admission to ENIs (into existing slots) after which they would be admitted into the ranks of civil service teachers (para 2.10). This policy is expected to encourage secondary school leavers from increasingly high grades to join the ranks of the supplementary teachers, thus raising their average skill level. 3.7 The training process would entail: (a) the selection of supplementary teachers eligible for the training, the criteria for this selection being previous schooling, teaching experience and age; (b) the organization of the courses which will be the responsibility of the Institut National des Sciences de l'Education (INSE) and will involve two ten-day sessions, one two-month session and eight pedagogical days ("Journees padagogiques") for those without the BEPC and twice that for those with the BEPC. The courses will be held in about 25 places (20 Regional Teacher Training Centers - CRFC - and 5 Primary Teacher Training Colleges - ENI) over four years of project implementation. For those without the BEPC, 250 would be trained during PY1, 500 in each of PYs 2 and 3, and 300 in PY4; for the holders of the BEPC, 100 would be trained during PYs 1 and 2 and another 100 during PYs 3 and 4, after which the program could be continued under other donor financing. Available staffing would consist of 150 trainers (inspectors, teachers in the ENIs and CFRC staff) in PY1 and 230 thereafter; (c) the training of 120 teachers occupying, but not trained for, the functions of inspectors and pedagogical advisors who will conduct the training in addition to the fully qualified inspectors and advisors; and (d) the monitoring and evaluation of the training, which will be the responsibility of the Directorate of Elementary Education (DEE). In order to permit early implementation of this component, design of the training courses for the supplementary teachers started during the first semester of 1988 under a Project Preparation Fund (PPF). The project would finance: (a) civil works to repair the 20 CRFCs; (b) about five vehicles and 20 light motorcycles, office supplies and equipment for the CRFCs; (c) six months of 2/ It is not Government policy to integrate these teachers into the civil service, nor does this appear to be the expectation of the supplementary teachers themselves. Government policy is that, except for the 200 holders of the BEPC diploma, there will be no linkage between training and salary. Furthermore, given the difficult situation on the labor market (a considerable number of unemployed secondary school graduates in N'Djamena alone), it is unlikely that these teachers will quickly desert their teaching activities. 13 specialist services (-omplementary to those to be provided by FAC and the Swiss bilateral); (d) six months of fellowships abroad for INSE and DEE staff; (e) the development and provision of training materials; and, (f) maintenance costs and transportation for trainers and trainees. At negotiations, Government gave assurances that it would create a Training Monitoring Unit within DEE by December 31, 1988. Details are given in Annex 3-4. 3.8 ReRular salary payments. In order to increase actual classroom presence and the level of motivation of civil service teachers, while improving budget ex.cution procedures, the project would support establishment on a pilot basis of streamlined procedures to ensure that teacher salaries are paid regularly. These procedures are described in para 3.13. 3.9 Improvement of teacher supervision. In order to improve the effectiveness of the pedagogic support and control provided to teachers, and to reinforce the impact of teacher training, the project would support a countrywide program of training for supervisory staff including the seven principal inspectors, the 34 elementary inspectors, the CFRC personnel, the pedagogical advisors and the school directors. Training would be provided for: (a) about 60 inspectors and CRFC directors who would participate in ten day seminars each year; topics would include planning, coordination and delivery of the teacher training activities; school management; educational administration and planning; teacher supervision and support (FAC would provide specialist services for these seminars); (b) about 600 school directors who would attend one month courses covering aspects of school management in the context of APE activities, methods of pedagogical support (especially for the supplementary teachers), and preventive maintenance of textbooks and buildings. The project would finance: (a) civil works to repair some of the inspectorates; (b) fees for national consultants for delivering and developing the above program; (c) travel and maintenance costs for participants; and (d) selected related operating costs. Details are in Annex 3-4. 3.10 In order to improve field level administration, management and supervision, the project would provide the seven principal inspectorates and the 34 elementary inspectorates with the basic materials (such as paper, books, and pencils), transport and operating budgets needed for their efficient operation. This would allow the inspectorates to effectively discharge, in addition to the pedagogical supervision of teachers and school directors, a number of implementation and managerial activities including: the collection of statistics and other information used for planning and personnel management; and the organization and monitoring of project activities such as teacher training and the distribution of textbooks and pedagogical materials. The project would finance: (a) about 41 vehicles and 34 light motorcycles; office equipment and materials (such as typewriters, duplicating machines, paper, and pencils); and (b) selected incremental operating costs. Details are in Annex 3-4. 3. Rehabilitation of Sectoral Management and Planning 3.11 In order to ensure the productivity of the investments which will be made in the physical and qualitative rehabilitation of primary education, as 14 well as to set the stage for the longer-term development of the sector, the project would strengthen MEN's capacities for: (a) sector management and planning including budgetary procedures, personnel management and salary payment, the collection and analysis of statistics and other relevant information and the elaboration of a viable sectoral strategy; and (b) project implementation and management. 3.12 Sector Management and Planning. This component would support improvements in the structure and operation of MEN, and wouid reinforce more particularly the Directorate for administrative and financial affairs (DAAFM) and the Planning Unit of the Ministry. AfDB is financing a study of MEN's organization and methods (O&M) which will conduct a functional diagnosis leading to recoimmendations for a more efficient ministerial structure and for improved managerial practices. The project would support implementation of these recommendations. Details are in Annex 3-5. 3.13 Improving personnel management and budget preparationlcontrol procedures would be part of Government's efforts to reform its public expenditure system under its structural adjustment program. Combined with an improved liquidity position due to anticipated non-project funding, this would also allow the regular payment of salaries. To help achieve this, the project would do three things. First, it would help streamline and tighten budgetary procedures within the MEN through more accurate, computerized budgeting and the monitoring of expenditure and costs. Second, it would complement an on-going FAC operation, which provides specialist services, training and fellowships to DAAFM to modernize personnel files, and to improve the management of staff and the monitoring of personnel costs. Third, the project would support an experimental set of measures to accelerate the present salary payment procedures. The proposed measures would simplify the current system, and give more responsibility to the regions, delegating payment responsibilities to MEN officals, while maintaining sufficient controls. Details are in Annex 3-5 and Annex 3-6. 3.14 In order to support the planning and implementation of the rehabilitation effort as well as the process of strategy development, the project would strengthen the capacities of MEN's Planning Unit for (a) collecting, processing and analyzing statistics; (b) school location planning; and (c) conducting evaluations and financial analysis. In addition, the project would create a "Study Fund" to finance studies, applied research, pilot programs and national fora identified by the "Cellule de Reflexion sur le Developpement de l'Education' (para. 2.10) and aimed at formulating a global human resource development strategy. The key documents outlining this strategy would be presented to the donors at a UNDP Round Table scheduled for FY89, and further refined in the following years. Topics would include (i) the costs and financing of education, including local financing and efficiency measures such as double shift and multigrade teaching; (ii) external efficiency, including ways to increase access to primary education, especially for girls, and low cost alternatives to general secondary and higher education; and (iii) internal efficiency, including pedagogic content and delivery systems. Details are in Annex 3-5. 3.15 The project would finance: (a) two vehicles (one each for the DAAFM and the Planning Unit), 4 micro computers (one each for the DAAFM and the Planning Unit, and two for the Payroll Unit in the Finance Ministry); 15 specialist services in O&M, budgetary procedures and the new salary payment system, and planning; (c) 48 months of training abroad for senior MEN personnel (24 months in management training and 24 months in educational statistics/planning and school mapping); (d) two in-country two-week seminars for 50 middle level personnel on the new O&M procedures; (e) one-three day seminar at the central level and two regional one-day seminars to train the MEN staff who would assume new responsibilities i% salary payments, and intersectoral seminars on human resource development for planners and policy makers; (f) one reserve fund deposited in a Bank account in Abeche and one in Moundou, each equivalent to one month's salary bill for the corresponding zone (total: US$80,000), and to be matched by an equal, timely transfer from the Treasury (these funds would serve as buffers in case of administrative delays in the transfer of liquidities from the capital); a "Study Fund' (about US$0.3 million) to finance the development and elaboration of a sectoral strategy including pilot operations; and (g) selected incremental operating costs. At negotiatiorns, Government gave assurances that it would (i) submit the O&M study to IDA for comments by December 31, 1988, and begin implementation of agreed-upon recommendations within the following six months; (ii) ensure regular payment of education personnel salaries on the basis of at least 60% of their nominal 1967 base; and (iii) prepare a scheme to ensure regular payment of salaries to education personnel, submit such scheme to IDA by November 30, 1989 for comments and implement said scheme as agreed with IDA; and (iv) formulate a global human resource development strategy, and discuss said strategy with IDA prior to the UNDP Roundtable scheduled for FY89. A condition of disbursement for the Study Fund (Category 7) would be approval by IDA of each additional activity proposed for financing under the said Fund. Proposals for such activities would be submitted to IDA by Government with a detailed description, implementation plan and cost estimate. 3.16 Project Directorate. In order to ensure efficient and timely implementation of project activities, the recently established National Directorate for Education.1 Projects (DNPE), which is responsible for externally financed projects, would be strengthened. Implementation of individual project components would be entrusted to the concerned MEN directorates. DNPE would coordinate their activities and would assist them in the areas of procurement, financial administration, documentation, monitoring, reporting, liaison with IDA and preparation for the Annual reviews. DNPE's full-time national Director and current staff of two (plus four support personnel) would be assisted by an experienced internationally recruited project administrator/manager, and an education specialist (also internationally recruited) who would also be assigned to the DNPE for pedagogic coordination, including monitoring of the policy frame-work. Training of technical staff in MEN departments would occupy at least 25Z of their time. To ensure adequate standards in auditing and reporting, the project would provide the necessary consulting services to help the project management team establish monitoring and reporting systems (para 3.27). The Credit would finance: (a) office furniture and equipment; (b) about 150 manmonths of specialist services in project coordination, management and monitoring, procurement, accounting, auditing and future project development; (c) 6 months of training abroad in project management; (d) study visits abroad to observe project management in other countries in the region; and (e) selected incremental operating costs. During negotiations, Government gave assurances that it would maintain at all times during project 16 implementation the full-time positions of Project Director, Accountant, Project Administrator and Educator/Education Planner, and keep these positions filled at all times with personnel whose qualifications and experience are satisfactory to IDA. It is a condition of credit effectiveness that a contract with the Educator has been signed and that the Project Administrator is in plact in DNPE. Details are in Annex 3-7. B. Prolect Costs and Financing Plan 3.17 The total project cost is estimated at US$25.2 million equivalent, (net of taxes and duties) with a foreign exchange component of US$19.2 million (76%). Base cost estimates are at February 1988 prices, using the May 1988 exchange rate. The project would be financed by IDA (US$22.0 million or 87.3% of total costs), contributions by local communities to primary school construction (US$1.8 million or 7.1%), and budgetary allocations from the Government (US$1.4 million or 5.6%). The local communities would help finance the school rehabilitation and reconstruction program through in kind (labor and local building materials) and/or c:ash contributions. Government contributions would cover the scholarships of 200 qualified supplementary teachers to the ENIs (para 3.6) and 16% of operating costs. The major assumptions in arriving at the cost estimates, as well as the detailed costs by component, by cost category and financing source are given in Annex 3-8. 3.18 Recurrent expenditure implications will be minimal. Since the project will rehabilitate only existing schools where there is a demonstrated capacity for CI/APE financing (in kind and/or in cash), it will not generate increased teacher needs beyond those to service existing demand. Newly recruited teachers will be either community-employed supplementary teachers or those already programmed for places in the ENIs. Project trained supplementary teachers are not expected to receive Government compensation. No new civil service positions will be created by the project. Improvements in internal efficiency would not directly affect recurrent costs but would reduce the unit costs/graduate. However, continued financing of programs such as primary school reconstruction, teacher in-service training, and maintenance of an adequate level of operating costs (fuel, vehicle and equipment maintenance costs, and consumables), could not be assumed by the projected Government budget after 1993 and would require renewed external support. C. Proiect Implementation 1. Preparation, Management and Institution Building 3.19 Status of proiect preparation. A Project Preparation Facility (PPF) has been established to prepare three studies (on the CI/APEs, the distribution of textbooks, and salary pqyments) needed for Appraisal and subsequent project processing. The PPF is also financing start-up activities for the training program. Plans for primary schools have been developed and tested by the on-going Swissaid construction program. They allow for optimal use of local construction materials such as sun-dried bricks, stone and wood, depending on location. Furniture and equipment lists are being prepared. Criteria for site selection for the physical rehabilitation component (para. 3.3) will be based on the CI/APE study. Terms of reference for the provision 17 of specialist services have been prepared for PY1 and recruitment is underway. The implementation and disbursement schedules are based upon experience derived from the three previous IDA education projects. 3.20 ImplementatiouL plans and schedules. Implementation and coordination responsibilities are given in para. 3.16. Given the low absorptive capacities of some Directorates, the scope of the project has been adjusted to allow for execution in about six years, including six months for finalization of accounts and withdrawals. Project completion is expected by June 30, 1994, with a Closing Date of December 31, 1994. Implementation details for each component are given in Annexes 3-1 through 3-7. 3.21 The project would have a phased implementation plan, with the following basic underlying principles: (a) a detailed Implementation Plan (IP) for each project year, to be submitted to IDA for review two months before the end of the project year; (b) the IP to be based on regular monitoring of project implementation by the DNPE, including a process of feedback from the regional centers and the inspectorates; and, (c) Annual joint Government - IDA Reviews of (i) performance during the previous year, and (ii) the proposed IP, including the framework of Government's sectoral policy, investment strategy and recurrent budget. At negotiations, the Government gave assurances that it would implement the project according to the arrangements and schedules agreed to, including joint Government-IDA Annual Reviews to be held no later than November 30 each year to review past IP performance and agree on a new IP for the next year. Details are in Annexes 3-1. 3-9 and 3-10. 3.22 Specialist services and training. The project would provide a total of 76 manyears of specialist services (of which 371 by local staff) and a total of 710 years of fellowships for training (99% locally). Terms of reference for specialists for PY1 were agreed upon during Negotiations. Revisions for subsequent years can be made during the joint Annual Reviews and in the ensuing annual IPs. Details regarding specialist services and training are given in Annexes 3-11 and 3-12. 2. Procurement, Disbursements and Special Account 3.23 Procurement. The Procurement Table below shows expected procurement by category of expenditure. 18 AMOUNT AND METHODS OF PROCUREMENT Procurement Method NO CATEGORY OF EXPENDITURE ICB LCB OTHER N/A TOTAL COST ----------(USS million)----------------- 1. Civil Works a. General contracts - 1.37 - - 1.37 (Parts A, B1, B3) - (1.37) - - (1.37) b. Building materials 4.46 0.19 0.10 - 4.75 (Part A) (4.46) (0.19) (0.10) - (4.75) c. Community inputs - - - 1.76 * 1.76 (Part A) (0.00) (0.00) 2. Furniture and non Pedagogical Equipment 2.25 0.60 0.20 - 3.05 (Parts A, B, C, D) (2.25) (0.60) (0.20) - (3.05) 3. Pedagogical Material a. Textbooks - - 2.96 - 2.96 (Part B1) - - (2.96) - (2.96) b. Pedagogical equipment 0.14 - - - 0.14 (Parts A, B) (0.14) - - - (0.14) 4. Specialist Services and Study Fund a. International and local specialists - - - 4.58 4.58 (Parts A, B, C, D) - - - (4.58) (4.58) b. Volunteers - - - 0.64 0.64 (Part A) - - - (0.00) CO.OO) 5. Training and Fellowships - - - 2.86 2.86 (Parts A, B, C, D) - - - (2.57) (2.57) 6. Operating Costs - - - 3.10 3.10 (Parts A, B, C, D) - - (2.60) (2.60) TOTAL COSTS 6.85 2.16 3.26 12.94 25.21 TOTAL FINANCED BY IDA (6.85) (2.16) (3.26) (9.75) (22.02) NOTE: Capital letters and figures in parentheses show the respective components and amounts financed by the IDA credit. * Local communities' contributions for the school construction program. Part A: Support to Community Initiatives; Part B: Improving quality and efficiency; Part Bls Provision of textbooks; Part B2: Teacher Training; Part B3: Inspectorates; Part C: Strengthening management and planning capacity of MEN; Part D: Project directorate. 19 3.24 Contracts for imported construction materials, furniture, equipment and vehicles totalling about US$6.85 million equivalent, including contingencies, would be awarded on the basis of international competitive bidding (ICB) in accordance with the Bank Group's guidelines for procurement, except as follows: (a) civil works, furniture, equipment, vehicles and construction material contracts costing less than US$100,000 equivalent each; and, (b) local transportation services for construction materials, furniture and equipment. These items would be awarded on the basis of competitive bidding advertised locally in accordance with local procedures acceptable to the Association provided that: (i) the aggregate cost of these contracts did not exceed US$1.5 million equivalent, including contingencies; (li) all bids were opened in public and bidders' representatives were allowed to be present; (iii) criteria for evaluating bids was set out clearly and communicated to all bidders; (iv) no preference margin was granted to domestic manufacturers or suppliers; and (v) foreign firms were authorized to bid in accordance with local procedures. Taking into account the need for continuity, textbooks financed by IDA would be procured after limited international consultation with at least three publishers in accordance with the Association's guidelines (para 3.4). Civil works estimated at US$3.4 million would be scattered over 330 sites and would be only partly carried out by contractors. Reconstruction or rehabilitation of the 1,000 primary classrooms would be executed through self-help organized by APEs. Regional Centers would provide technical advice in planning and executioa of works. The reconstruction and/or rehabilitation of the CRFC and school inspection offices, representing about four percent of total civil works and involving 32 sites, would be carried out under contract on the basis of LCB procedures. Details on procurement procedures are in Annex 3-13. 3.25 Disbursements. The regional disbursement profile is eight years. However, given the fact that the project was designed as an emergency rehabilitation operation, the IDA credit would be disbursed over a period of six years on the basis of the categories shown in the table below. The estimated quarterly disbursement schedule is shown in Annex 3-14, and Annex 3-15 provides a summary of national contributions to the project. Allocation and Disbursement of the IDA Credit Category of Proposed IDA 2 of Expenditure Expenditure Allocation Financed by IDA (US$ million) 1. Civil works contracts 5.6 1001 (of expenditures) 2. Furniture and non- pedagogical equipment 2.8 1001 (of expenditures) 3. Pedagogical materials 2.8 100Z (of expenditures) 4. Specialist services 3.5 100l (of expenditures) 5. Training and fellowships 2.4 1002 (of expenditures) 6. Operating costs 2.3 851 (of expenditures) 7. Study fund .3 1001 (of expenditures) 8. PPF .575 9. Unallocated 1.72 Total 22.0 _gggm 20 3.26 Special account. To facilitate disbursements, a Special Account in an amount equivalent to CFA francs 340 million or three months of expenditures, funded by IDA, would be established in a local commercial bank acceptable to the Association. Replenishment applications to IDA would be aggregated into packages of at least US$100,000 equivalent and would be fully documented except for expenses related to contracts and/or expenditures valued at less than US$20,000 equivalent which would be reimbursed against certified statements of expenditures (SOEs), for which documentation would be retained at the DNPE for random review by IDA supervision missions and for annual audits. Reimbursement applications would also L.:>ludl a statement of account movements since the last application, with the balance certified by the bank holding the account, and a reconciliation showing that the balance represented the original amount less payments awaiting reimbursement of small working advances. Given the availability of the Special Account, the minimum application for direct payments would normally be for the equivalent of US$20,000. The Government would submit replenishment requests to the Special Account on a monthly basis or whenever the account was diminished by one- third, whichever came first. 3. Accounting, Auditing and Reporting 3.27 The Project Director would maintain a project account that would be subdivided into expenditures incurred for each component. Accounts to cover operating costs would be established at the regional level for the two Regional Centers and consolidated at the project level (para 3.3). At Negotiations, the Government gave assurances that: (a) all project accounts, including all disbursements against SOEs, would be audited annually by an independent auditor acceptable to IDA; (b) the Government would submit the audit reports to IDA for review by SeptemDer 30 of each year, beginning in 1989; (c) the audit reports would certify that the funds were used for the purposes for which they were provided; and, (d) the Project Director would submit to IDA (i) semi-annual reports on project implementation and expenditures, the first one by December 31, 1988 and covering PPF activities, (ii) a detailed annual review of project implementation activities, as well as a detailed annual implementation plan for the subsequent year's activities, the first one by September 30, 1989; (iii) special reports on a need basis and, (iv) a completion report within six months of the IDA credit closing date. IV. PROJECT BENEFITS AND RISKS 4.1 Benefits. The project would invigorate the country's education system, while providing Government with both the means and the time to engage in sectoral planning. Developing a partnership between the communities and the Government for the rehabilitation of primary education would ensure the efiectiveness and sustainability of the communities' investments, and would provide a new impetus for sectoral development without placing excessive pressure on an already overstrained Government budget. Restoration of acceptable quality standards in primary education would have a favorable impact on pupil achievement and internal efficiency at all levels of education and eventually on labor productivity. Reinforcement of MEN's managerial and planning capacities would promote more efficient mobilization and use of public, private and external educational resources. Finally, the formulation and implementation of a strategy involving sound policy 21 principles, a well-coordinated investment plan, and a realistic institution- building program would set the stage for balanced development of an education system capable of responding flexibly to Chad's specific needs for human capital formation, within the limited resources available. This would improve the country's long-term development prospects. 4.2 Risks. A risk common to all Chad operations is that the war, now localized in the northern part of tae country outside the project area, might intensify, drawing more fiscal and institutional resources toward the military effort. Two risks more closely related to the proposed project concern (i) possible demobilization of the local communities, if a sudden influx of resources leads to centralizing tendencies in the Government; and (ii) limited absorptive capacities of MEN and the local communities, which are also solicited by other externally financed projects. The project design is expected to reduce these risks, through shared financial and managerial roles between Government and the local commv.aities, rigorous criteria for access to and control of project funds, capacity reinforcement, and careful monitoring. V. AGREEMENTS REACHED AND RECOMMENDATIONS 5.1 Durina negotiations, the Government and IDA agreed ons (a) the policy statement (para 3.2); (b) the detailed IP for PY1 (para 3.3 (f)); (c) the agreement to be reached with a volunteer association to help implerqnt the program of reconstruction and rehabilitation of primary schools (para 3.3 (f)); and (d) the terms of reference for specialist services (3.22); 5.2 During negotiations, the Government gave assurances that it would: (a) implement, as an integral part of the IP, the basic principles of the sectoral policy framework, which would be monitored at joint Government-IDA Annual Reviews, including timely submission to IDA of the draft three-year rolling investment program for the education sector and the draft annual budget law for the education sector (para 3.2); (b) implement the project according to the arrangements and schedules agreed to, including (i) a joint Government-IDA Annual Review, to be held no later than November 30 each year to review past IP performance and agree on a new IP for the next year (para 3.21); and (ii) the procurement procedures and the arrangements for management, accounting, auditing and reporting (para 3.20 through 3.27); (c) submit to IDA by June 30, 1989 for comments the draft manuals on classroom reconstruction, rehabilitation and maintenance to be produced under the project, and after taking IDA's comments into account, distribute the manuals immediately in the two project zones (para 3.3 (f)); (d) create a teacher Training Monitoring Unit within DEE by December 31, 1988 (para 3.7); 22 (e) submit to IDA for comments by December 31, 1988, the study on MEN's organization and methods, and begin implementation of agreed- upon recommendations within six months (para 3.15); (f) (i) ensure regular payment of education personnel salaries in the amount of at least 602 of their nominal 1967 base (para 3.15); and (ii) prepare a scheme to ensure regular payment of salaries to civil servants and in particular those of education personnel, submit such scheme to IDA by November 30, 1989 for comments, and implement said scheme as agreed with IDA (para 3.15); (g) maintain at all times during project implementation the full-time positions of Project Director, Accountant, Project Administrator and Educator/Education Planner, and keep these positions filled at all times with personnel whose qualifications and experience are satisfactory to the Association (para 3.16); and (h) formulate a global human resource development strategy through the "Cellule de Reflexion sur le Developpement de l'Education", (paras 3.14 and 3.15); 5.3 A condition of effectiveness would be that the contract for the Educator should have been signed, and that the Project Administrator should be in place in DNPE (para 3.16); 5.4 Conditions of disbursement would be that: (i) for the primary school construction component, a contract should have been signed between Government and a volunteer association (para 3.3 (f)); and (ii) for the Study Fund (Category 7), the Association should have approved each additional activity proposed by the Borrower (para 3.15). 5.5 Recommendation. Subject to the conditions set forth in paras. 5.1 to 5.4 above, the project is suitable as a basis for an IDA credit of US$22.0 million on standard terms. 23 Ann3x 1 Page 1 of 2 REPUBLIC OF CHAD EDUCATION REHABILITATION PROJECT BASIC DATA General GNP per capita US$179 (19o7) Land Area 1.3 million sq. km. Population 5.24 million (mid-1987 estimates) of which urban 25Z rvpu.aton duenslty 4.0 per km2 Population growth rate 2.42 Infant mortality rate 210 per thousand (1987) Life expectancy at birth - male 43 years (1984) - female 45 years (1984) School Gross Z in Pupil/ Enrol- Enrolment Private Z Teacher ment Ratio(%) Schools Female Ratio Primary Ed. (1986/87) 336,000 44.0 2.8 28.5 60.0 General Sec. Ed. (86187) Public 38,474 Private 1,786 Total 40,260 n.a. 4.4 15.0 37.0 Technical Sec. 3,097 - - 25.3 31.0 Voc. Ed. Sec. level 697 - - n.a. A.a. Teacher Training 1,221 - - 16.1 21.0 Higher Ed. 2,124 - - 9.0 n.a. Education ES*nditures Ministry of Education's budget (FY88) as Z of total Government recurrent budget: Distribution of budgeted public recurrent expenditures (for salaries) by level of education (FY88): % Primary Education 48.5 Arabic Education 4.8 General Secondary Education 16.2 Technical Secondary Education 1.9 Teacher Training 4.3 Higher Education 2.5 Scholarships 14.6 Central Administration and other non-specified 7.2 Total 100.0 24 Page 2 of 2Z KEY PEDAGOGIC PARAMETERS, BY LEVEL OF EDUCATION Primary Secondary 1986/87 1985/86 Length of cycle (years) 6 7 Number of schools 1,650 61 Number of teachers 6,203 586 of which about 10% are in Administrative or other non-teaching position (for primary) Percentage female teachers (%) 4.1 Percentage private sector enrolments (%) 2.8 0.5 Pupil/teacher ratio 60.0 37.5 Number of hours/school week 30 24 Number of pupil-years/graduates 15.9 Percentage of repeaters (%) 30.0 Percentage of cohort completing cycle (%) 38.6 Source: Ministry of Education and mission estimates. Ecole cle Sante (Infirmiers) le 2e 3e E.N.T.P. Ca Centres L d'apprentissage Ecole d'Agriculture imoniteurs E
Groupe de la Banque mondiale · Staff Appraisal Report
Chad - Education Rehabilitation Project
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Groupe de la Banque mondiale
Type de document
Staff Appraisal Report
Pays
Tchad
Source
Banque mondiale