Guinea - Education Sector Adjustment Credit

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 14617 IMPLEMENTATION COMPLETION REPORT REPUBLIC OF GUINEA EDUCATION SECTOR ADJUSTMENT CREDIT (CREDIT 2155-GUI) JUNE 16, 1995 Population and Human Resources Division Western Africa Department Africa Region This document has a restricted distribution and may be used bv recipients onlv in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  CURRENCY EQUIVALENTS (February 1995) US$1 = GNF978 GNF1 = US$0.001 GNF1000 = US$1.05 MEASURES Im = 1.09 yd Im2 = 10.76sqft I km2 = 0.38 sq mi ABBREVIATIONS AND ACRONYMS DAAF Direction des Affaires Administratives et Financi&res (Directorate of Financial and Administrative Affairs) ENI Ecole Normale d 'Instituteurs (Primary Teacher Training College) GOG Government of Guinea IMF International Monetary Fund IPN Institut Pedagogique National (National Education Institute) MEN Ministere de I 'Enseignement National (Ministry of National Education) MEPUFP Ministere de l 'Enseignementpre-Universitaire et de la Formation Professionnelle (Ministry of Pre-University Education and Vocational Training) MESRSC Ministere de I 'Enseignement Superieur, de la Recherche Scientifique et de la Culture (Minisfry of Higher Education, Scientific Research and Culture) PASE Programme d Ajustement du Secteur de I 'Education (Education Sector Adjustment Program) SEEPU Secretariat d'Etat pour I 'Enseignement pre-Universitaire (State Secretariat for Pre-University Education) USAID United States Agency for International Development Fiscal Year Academic Year January 1- December 31 October-June  FOR OFFICIAL USE ONLY IIPLEMENTATION COMPLEIION REPORT EDUCATION SECTOR ADJUSThIENT CREDIT (CR. 2155-GUI) CONTENTS PREFACE............. EVALUATION SUMMARY ........................................... ii I. INTRODUCTION ....................................ii II. PROJECT OBJECTIVES ...... ...................................... ii A. Project Objectives ........................................... ii B. Tranche Release Conditionalities .......................................... ii C. Evaluation of Project Objectives .......................................... iii HII. IMPLEMENTATION EXPERIENCE AND RESULTS .......................................... iii A. Achievement of Objectives and Sustainability .......................................... iii (a) Achievement of Objectives .......................................... iii (b) Sustainability .......................................... iv B. Costs, Financing and Implementation Timetable .......................................... iv (a) Costs .......................................... iv (b) Financing .......................................... iv (c) Implementation Timetable .......................................... iv C. Key Factors Affecting Implementation .......................................... iv D. Performance of the Bank and the Borrower .......................................... v E. Project Outcome .......................................... v IV. KEY LESSONS LEARNED AND FUTURE OPERATIONS .......................................... v A. Key Lessons Learned .......................................... v B. Future Operations .......................................... v PART I..1 A. Introduction .................................... I B. Project Background ................................. . 2 C. Project Objectives and Description ................................. 2 D. Achievement of Project Objectives ................................. 3 E. Major Factors Affecting the Project ................................. 5 F. Bank's Performance ................................. 6 G. Borrower's Performance ................................. 7 H. Assessment of Outcome ................................. 7 1. Project Sustainability and Future Operations ................................. 8 J. Future Operations ................................. 8 K. Key Lessons Learned ................................. 9 This document has a restricted distribution and may be used by recipients only in the perfornance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  PART II. STATISTICAL TABLES ..................................................... 11 TABLE 1: SUMMARY OF ASSESSMENTS ..................................................... 11 TABLE 2: RELATED BANK CREDITS ..................................................... 12 TABLE 3. PROJECT TIMETABLE ..................................................... 13 TABLE 4: CREDIT DISBURSEMENTS ..................................................... 14 TABLE 5: KEY INDICATORS FOR PROJECT IMPLEMENTATION ...................................................... 15 TABLE 6: KEY INDICATORS FOR PROJECT OPERATION ..................................................... 16 TABLE 7: STUDIES INCLUDED IN PROJECT ..................................................... 17 TABLE 8A: PROJECT COSTS ........................................ 18 TABLE 8B: PROJECT FINANCING ..................................................... 18 TABLE 9: ECONOMIC COSTS AND BENEFITS ..................................................... 18 TABLE 10: STATUS OF LEGAL COVENANTS ..................................................... 19 TABLE 1 1: COMPLIANCE WITH OPERATIONAL MANUAL STATEMENTS .............................................. 21 TABLE 12: BANK RESOURCES: STAFF INPUTS .............................................................. 21 TABLE 13: BANK RESOURCES: MISSIONS .............................................................. 22 APPENDICES .............................................................. 23 A. Mission's Aide-Memoire B. Borrower contribution to the ICR C. Tranche Release Conditionalities D. Map IBRD 27095  IMPLEMENTATION COMPLMTION REPORT EDUCATION SECTOR ADJUSTrMENT CREDIT (CR. 2155-GUI) PREFACE This is the Implementation Completion Report (ICR) for the Education Sector Adjustment Credit (2155-GUI) in Guinea, for which the arnount of SDR 15.4 million (US$20.0 million) was approved in June, 1990 and which became effective on January 14, 1991. The credit was closed on June 30, 1994, after a one-year extension from the planned closing date of June 30, 1993. The first tranche, released upon effectiveness, was fully disbursed by the end of FY91. The second tranche was subsequently released on March 2, 1993. The credit was fully disbursed through a third tranche, released on March 8, 1994. Parallel financing for the project was provided by the United States Agency for International Development (USAID) in the amount of US$29.1 million, and the French Ministrre de la Cooperation et du Developpement in the amount of US$9.0 million equivalent. The ICR was prepared by Robert Prouty, Population and Human Resources Division, Western Africa Department, Africa Region, and reviewed by Ok Pannenborg, Division Chief, and Emmerich S. Schebeck, Project Advisor. The borrower provided comments that are included as an Appendix to the ICR. Preparation of this ICR was begun during the Bank's completion mission, which took place in November 1994. It is based on material in the project file, data provided by the Ministry of Pre- University Education and Vocational Training (Ministere de I 'eLucation pre-universitaire et de la formation professionnelle, MEPUFP), field visits and discussions with Ministry officials. The borrower contributed to the preparation of the ICR by providing views reflected in the mission's aide-memoire, preparing its own evaluation of the project's preparation and implementation and commenting on the draft ICR.   Hi IMPLEMENTATION COMPLETION REPORT EDUCATION SECTOR ADJUSTMENT CREDIT (CR. 2155-GUI) REPUBLIC OF GUINEA EVALUATION SUMMARY I. INTRODUCTION 1. The project under review, Cr. 2155-GUI (SDR 15.4 million) follows Cr. 1341-GUI (SDR 10.2 million), which was implemented between 1983 and 1990, and Cr. 849-GUI (SDR 6.5 million), which was implemented between 1978 and 1982. The previous credits supported basic education; enhancement of educational planning and project implementation capacity; and vocational training. The first two credits met most of their quantitative goals, but had a limited impact on the sector as a whole, and the results of these credits showed the need to develop a coherent education and training policy framework linked to the macroeconomic adjustment program. The project under review, hereafter referred to as the PASE (Programme d'Ajustement Sectoriel de l 'Education), was based on a new sectoral education policy declaration and a comprehensive study of the education sector, and focused on administrative, financial and educational reconstruction of the sector. 11. PROJECT OBJECTIVES A. Project Objectives 2.1 The overall objective of the PASE was to support the first phase of the GOG's education sector adjustment program. The PASE aimed to improve educational management, expand access to basic education and enhance school quality, within structural adjustment constraints. 2.2 The objectives of the PASE were appropriate for the macroeconomic situation in Guinea and for the education sector. They contained long-term sustainability measures, as well as immediate targets, and were designed to produce a framework for the development of the education sector, emphasizing expanded access to basic education. The objectives were based on direct linkages with the Government's structural adjustment policies and focused the attention of policy makers on the human resource sector as a key part of the country's economic development. This careful design contributed to the success of the GOG in implementing the adjustment program. B. Tranche Release Conditionalities 1. Loan Covenants 2. Tranche Release Conditionalities 2.3 The following tranche release conditionalities were agreed upon: * adoption of a comprehensive statement of national policy for the educational sector;  iii * creation of a high-level committee to monitor the implementation of key policy changes, which would meet at least four times a year and provide quarterly reports to the Structural Adjustment Program (Programme d 'Ajustement Structurel, PAS) monitoring unit of the Government's economic and financial coordinating committee and to the Bank; * creation of a senior sector coordination committee (Comite de Pilotage) to: (i) supervise Directorates and implementing units; (ii) initiate proposals for program modifications as needed; and (iii) monitor links between regular sector activities and the sector adjustment program; * adoption of minimum spending norms for teaching materials (2,800 GF per student/year) and operational spending/administrative staff (210,000 GF per staff/year); * commitment to a recurrent budget permitting revision of spending norms and based on enrollment increases; * increased resource budgeting for primary education (34% in 1990 and 35% in 1992) and operating expenditures (16% in 1990 and 18% in 1992); * development of an implementation schedule for matching local community initiatives for school construction with funds from the education sector budget; * preparation of a staffing strategy for 1990-1993 with targets for staff redeployment, training, recruitment and staff utilization ensuring that 27% of all rural primary classes would operate with multigrade teaching in 1993; * provision of evidence that operational plans are consistent with tranche release requirements. C. Evaluation of Project Objectives 2.4 Project objectives were appropriate for the country situation and the stage of development of the education sector. They sought to establish an overall budget framework and stable financing for the education sector as a prelude to follow-up operations to improve school-level inputs and processes. They contained long-term sustainability measures as well as immediate targets. The objectives were designed to encourage a comprehensive framework for the development of the education sector, emphasizing growth and increased equity. They were based on direct linkages with the Government's structural adjustment policies and focused the attention of policy makers on the human resource sector as key for the country's economic development. m. IMPLEMENTATION EXPERIENCE AND RESULTS A. Achievement of Objectives and Sustainability (a) Achievement of Objectives 3.1 Almost all of the project objectives were met. Implementation results can be summarized as follows:  iv * Improving Educational Management: (a) roles and responsibilities of actors in the education sector were redefined in support of greater school-level responsibility for student learning; and (b) budgeting and personnel management procedures were completely overhauled. * Expanding Access to Basic Education: (a) gross enrollments increased from 28% to 40% and girls' enrollment increased by 70% during the period of project effectiveness; and (b) 2032 classrooms were constructed or rehabilitated. * Enhancing School Quality: (a) a national evaluation of the educational system was conducted to guide curriculum revision and instructional reform; (b) 400,000 third- and fourth- grade textbooks, 120,000 copies of a French first grade reader and 5000 teacher manuals were distributed to students and teachers; (c) a new statute for teachers (Statut particulier) defining staffing norms was adopted; and (d) 1847 education sector employees were redeployed from overstaffed secondary schools to primary classrooms. (b) Sustainability 3.2 This project is likely to be sustainable for the following reasons: (a) the GOG remains strongly committed to educational reform; (b) the project goals have widespread in-country support; (c) a follow- up project which would reinforce the goals of the PASE was approved by the Board in May 1995; and (d) donors involved in the PASE will continue to be involved in the sector. B. Costs, Financing and Implementation Timetable (a) Costs. Total programn costs were approximately US$44.0 million equivalent, excluding taxes. Support was provided by IDA (US$20.0 million equivalent), USAID (US$29.1 million equivalent) and the French Fonds d'Aide et de la Cooperation CFAF (US$9.0 million equivalent). (b) Financing. The IDA credit was disbursed in three tranches. The first was disbursed in two parts and was fully released by the end of FY91. The second was released in March 1993 and the third in March 1994. The credit financed general imports subject to a negative list. The foreign exchange costs of the sector and its direct import requirements were small and mostly financed by bilateral and multilateral programs. The use of credit proceeds to finance general imports not specifically tied to the sector was coherent with the need for central balance of payments support. (c) Implementation Timetable. Tranche release dates are given above. The project was closed on June 30, 1994, one year later than originally planned. Reasons for the delay are given below. C. Key Factors AfTecting Implementation 3.3 The successful implementation of this project was primarily due to: (a) strong Guinean political commitment; (b) emphasis on a comprehensive educational framework and linkages to the macroeconomic climate; (c) constructive coordination between donors; and (d) support by beneficiaries, including communities and teachers.  v 3.4 The delay in the implementation of the project was primarily due to: (a) macroeconomic constraints; (b) difficult working conditions; (c) slow disbursement of funds from the Treasury to MEPUPF; and (d) delays in transfer of funds from central to regional offices. D. Performance of the Bank and the Borrower 3.5 The Bank's performance in project preparation, appraisal and supervision was highly satisfactory, due primarily to the competence of staff, frequent missions, and low turnover. 3.6 The Borrower's performance was also highly satisfactory. The GOG was committed to educational reform and demonstrated ownership of the objectives of the project from the preparation stage. Ministry staff complied with all loan conditionalities and monitoring and reporting requirements and created national enthusiasm for educational reform. Efficient administrative structures were created and the management skills of sector personnel were enhanced. 3.6 The Bank-Borrower relationship was productive from the project identification stage throughout the period of project effectiveness. E. Project Outcome 3.7 The project outcome was highly satisfactory. All major objectives were achieved and a follow- up project, the Equity and School Improvement Project, was developed to reinforce the achievements of the PASE and broaden the education development emphasis in Guinea from the expansion of access to include the enhancement of quality, specifically improvements in teaching and learning environments and student learning outcomes. The Equity and School Improvement Project was approved by the Board on May 9, 1995. IV. KEY LESSONS LEARNED AND FUTURE OPERATIONS A. Key Lessons Learned 4.1 The leverage that results from using a broad sectoral approach can lead to meaningful change in resource distribution across and within sub-sectors. During the implementation of the Guinea PASE, the development of a coherent sectoral strategy attracted increased support from other donors. While this ensured closer attention to donor coordination, it also led to implementation delays because of cross- conditionalities of donors who, of necessity, had differing implementation schedules. While greater financial stability was ensured by using existing structures to implement the PASE, this nevertheless was a source of further implementation delays, largely due to inefficiencies in the Ministry of Finance. The adjustment approach was highly successful in increasing the overall level of resources allocated to the education sector, but it was less successful in ensuring timely delivery of specific education inputs. B. Future Operations The follow-up project, the Equity and School Improvement Project, approved on May 9, 1995, targets school and classroom level interventions. It aims to further increase enrollment and completion rates, improve decentralized management of school processes and student learning and strengthen personnel and financial management.  IMPLEMENTATION COMPLETION REPORT EDUCATION SECTOR ADJUSTMENT CREDIT (CR. 2155-GN) REPUBLIC OF GUINEA PART I. A. Introduction 1. Changes in Guinea's political climate in the 1980s, beginning with the change in government in 1984, precipitated a reorientation of the country's development strategy and the Bank's assistance program. In 1984, the GOG launched a structural adjustment plan in conjunction with the International Monetary Fund (IMF) in an effort to improve the country's economic situation; the Bank provided technical and financial support to improve implementation and direct attention to the long-term effects of the structural adjustment plan, especially in terms of equity and poverty reduction issues. The program was designed to free the economy from pervasive state control, gradually switch to a market orientation and improve administrative efficiency. Due to severe economic problems, the Government initially targeted its reforms at the country's macroeconomic structure, delaying reforms in the social sectors. 2. The GOG's initial program of reforms included the following targets: (a) achieving 5% average annual economic growth; (b) decreasing inflation by ten percentage points between 1989 and 1995; (c) devaluing the Guinean franc to increase international competitiveness; (d) reducing the current account deficit to 5.1 % of GDP; and (e) restoring available foreign exchange reserves to the equivalent of 4.3 months of non-mineral imports. 3. Although these reforms were implemented, the macroeconomic situation in Guinea was so difficult that the GOG continued to require concessional funding and support for debt relief. GNP grew by 4.3% per year between 1985 and 1990, but then by only 2.8% per year from 1990 to 1992, mainly due to a drop in mineral earnings and increasing interest rates on the country's public debt. Guinea's projected current account deficit was $298 million in 1990-1992. 4. This deficit considerably restricted the availability of public funds for recurrent expenditures. Recurrent expenditures declined by 6% in real terms between 1989 and 1992, a decrease of GF 75.5 billion (US$92 million). The situation was further aggravated by factors such as mandated salary increases for all civil servants following civil service reform and gaps in balance of payments (BOP) financing, due to reserve accumulation targets set in the economic recovery plan. 5. Related to the macroeconomic situation, resources for the education sector shrank and operations were reduced to minimal levels. In 1989, only 28% of primary school-aged Guinean children were enrolled in school. Only 10% of children who entered primary school completed the six- year cycle. School enrollment rates at all levels were declining, due to increasing household-level poverty, civil strife and decreasing educational quality.  2 B. Project Background 6. Although the GOG felt that reform of the macroeconomic sector should be its priority, dialogue between the GOG and IDA emphasized that development of the human resource sector would be critical to the future productivity of the country. In order to improve operations in the sector, the GOG decided to pursue a sectoral adjustment program, linked to macroeconomic conditions and reforms. Given the balance of payments deficit, the procedures of adjustment lending, offering support through the regular budgetary process, seemed the most appropriate. 7. Support for the operation was provided by IDA (SDR 15.4 million), USAID (US$29.1 equivalent) and the French Ministere de la Coope'ration et du Developpement (US$9 million equivalent). Eighty percent of USAID funding was in the form of general debt relief. An undisbursed tranche of the Second Education Project (Cr. 1341-ON), of approximately US$ 500,000, was reallocated for project preparation. Local contributions for school construction were encouraged and matched with funds from the Guinean Treasury. 8. IDA and national counterpart funds were not earmarked directly for the sector, nor for specific expenditures. Actions included in the reform program were to be funded using standard public finance procedures and fund disbursement was to be based on compliance with conditionalities for tranche release. C. Project Objectives and Description 9. The key objective of the project, hereafter referred to as the PASE (Programme d'Ajustement Sectoriel de 1'Education), was to support the first phase of the GOG's sector adjustment program. The PASE aimed to improve educational management, expand access to basic education and enhance school quality within structural adjustment constraints. Priority was given to expanding basic education services, increasing administrative capacity, rationalizing budgeting procedures and increasing allocated resources. 10. Specific activities planned to support the adjustment process included programs to: (a) increase the efficiency of management and resource allocation and use at the central and regional levels; (b) supply textbooks and teacher's guides to schools; (c) revise primary pre- and in-service teacher training for traditional and multigrade classrooms; (d) expand access to basic education through the rehabilitation and construction of primary schools; (e) improve management of education personnel; and (f) conduct studies to address the barriers to girls' participation in the educational system and develop educational policy through a determination of priority issues in higher education and vocational training. 11. Project objectives were appropriate for the country situation and the stage of development of the education sector. They sought to establish an overall budget framework and stable financing for the education sector as a prelude to follow-up operations to improve school-level inputs and processes. They contained long-term sustainability measures as well as immediate targets. The objectives were designed to encourage a comprehensive framework for the development of the education sector, emphasizing growth and increased equity. They were based on direct linkages with the Government's structural adjustment policies and focused the attention of policy makers on the human resource sector as key for the country's economic development.  3 D. Achievement of Project Objectives 12. This section will concentrate on the achievement of key activities that were implemented to support the GOG's adjustment process. 13. Measures to improve sector management and resource allocation and use. Achievement of objectives in this component was substantial, as implementation resulted in an appropriate, focused reformulation of sectoral policy. The following specific actions were carried out: * Leadership roles and responsibilities at the Ministry of National Education (Ministere de l'Enseignement Nationale, MEN) were redefined and the Ministry was restructured into two Ministries: the Ministry for Pre-University Education and Vocational Training (Minisr2re de 1'enseignement pre-universitaire et de la formation professionnelle, MEPUFP) and the Ministry of Higher Education, Scientific Research and Culture (Ministere de 1'enseignement superieur, de la recherche scientifique et de la culture, MESRSC). * A monitoring committee (Comite de Suivi) was established to monitor budgets and control expenditures and a steering committee (Comite de Pilotage) was established and made responsible for control of the PASE and overall sectoral coordination. * Several support services were put in place or restructured, including units for financial and administrative affairs, for the collection and analysis of educational data and school mapping and for school construction and rehabilitation. e An Inspectorate of Education was established, to strengthen school inspection and supervision and to support National Directorates, which have oversight responsibilities for pre- and in-service teacher training. * A technical secretariat, consisting of one senior member of Ministry staff and two international consultants was established and directly involved in decision-making. * New staffing norms were established and a computerized personnel tracking system to facilitate personnel monitoring and evaluation was developed and implemented. * The GOG's education budget increased from US$22.8 million in 1990 to US$76.0 million in 1994 (recurrent and investment budgets). Between 1991 and 1994, allocations for primary education, excluding administrative costs and as a percentage of the sectoral budget, increased from 34% to 35%. Non-salary expenditures increased to 21%, well above the 18% required by project conditional ities. * Difficulties in the implementation of this component resulted from insufficient coordination within and between Ministries, limited resources and incompletely executed budgets. Budget execution was usually 75% to 80% of planned amounts. 14. Supply of Textbooks and Teacher's Guides. Achievement in this area was substantial. The following actions were implemented:  4 * 400,000 third- and fourth- grade textbooks made available through the Second Education Project were distributed. * Two new French first grade readers were created by the National Pedagogic Institute (Institut PeLagogique National, IPN). 120000 student copies and 5000 accompanying teacher's manuals were distributed. All first grade teachers were trained in the use of these books. * An official list of textbooks was established for Ministry approval. * Teacher's guides were prepared for a variety of subjects. 15. Teacher Training. Achievement in this area was only partial. The goal of training 8000 teachers and administrative personnel was not achieved, largely due to inadequate funding for replacement teachers and conflicts created by overlapping and ill-defined responsibilities among the institutions involved. 16. Modest gains were made in addressing issues in teacher training, including: (a) the development and use of cascade methods to train large numbers of teachers; (b) in-service training for multigrade class teachers; and (c) training in textbook use. 17. The proposed increase in the number of multigrade classrooms was revised during the project, due to differences in strategies endorsed by varied actors in the sector and such high levels of demand for education that, once classrooms were opened to more than one grade, they quickly became crowded with sufficient numbers of students to support the opening of additional classrooms with traditional classroom arrangements. At the end of the project, only 248 classrooms were multigrade, representing 2.44% of Guinean classrooms, far short of the initial goal of 27%. On the other hand, the number of rural students enrolled in primary school in general far exceeded the targets. 18. Expansion of Access to Basic Education. Achievement in this area was substantial. In 1992, there were 8415 functioning classrooms in the Guinean primary system, and 2590 schools. By 1994, the number of classrooms had increased to 10445, and the number of schools to 2849. This increase of 2032 classrooms comprised 346 renovated and 1684 new classrooms. Of these, 504 were constructed solely with Guinean resources, and 1526 were constructed with at least partial assistance from donors. These classrooms were built following low cost, community-based construction norms developed under a three year pilot program (over 280 primary classrooms were built under the pilot program itself). A new three-room school model was also developed and widely used during the project, as an alternative to the one-room school prevailing in many rural areas. 19. Local contributions to school construction costs were estimated at about 10% of total costs. Construction funds were matched by the Government, increasing the motivation of communities to contribute to the local education system. 20. The gross primary school enrollment rate increased from 32% to 40% during the project, well above the enrollment target of 37%. The primary school intake rate in 1994 was 70%, 10% well above the target of 60%. However, serious gender and urban/rural disparities in enrollment remain. Although girls' gross primary enrollment increased by 70% during project effectiveness, their enrollment rate remained only 27%, well below the 53% rate for boys. Rural areas also lag in enrollment rates.  5 Enrollment statistics suggest that almost 50% of enrollments are in urban areas, although 73% of the Guinean population lives in rural areas (1992). Rural schools tend to be small and isolated, with limited resources and opportunities for teachers to work together, and correspondingly lower educational quality. 21. Management of Education Personnel. Achievement of objectives in this component was substantial. The following actions were carried out: (a) new guidelines for teachers (Statut Particulier) were adopted, defining teacher qualifications, guiding teacher redeployment, recruitment and training programs and establishing the minimum number of hours of secondary school teaching at 18 hours (there had been no previous minimum and the average number of hours taught per week had been 12 hours); and (b) 1827 secondary school teachers and administrative personnel were redeployed for teaching at the primary level and have been included in retraining action plans. 22. Studies of the Education Sector. The two principal studies planned under this component were carried out as follows: * Girls' Participation in the Education System. The project supported a classroom- based study of girls' participation in education and socio-cultural barriers to that participation and a nationwide media campaign to raise awareness of the importance of girls' education and preparations for future studies. Higher Education and Vocational Training. A policy paper based on a study of higher education is being used to design a program of reforms for higher education and research institutions, and another policy paper addressing vocational and technical training issues has been prepared by the GOG. E. Major Factors Affecting the Project 23. The factors affecting project implementation can be classified as: (a) factors not subject to sectoral control; (b) factors subject to sectoral control; and (c) factors subject to the control of the implementing agencies. (a) Factors not generally subject to sectoral control included: (i) macroeconomic constraints, including a large balance of payments deficit and declining trade earnings; and (ii) difficult working conditions, including the extremely limited capacity of Guinea's communication, utility and transportation systems. (b) Factors subject to sectoral control included: (i) slow disbursement of funds from the Treasury to MEPUPF, due in part to inexperience with the procedures required by the project, and to differences between the fiscal year and the school year; (ii) delays in transfer of funds from the central administration to regional offices, due to unfamiliar administrative procedures and limited liquidity;  6 (iii) insufficient budgetary monitoring by the project's Steering Committee, which delayed the joint donor review required for tranche clearance; (iv) large salary increases for the civil service and resulting budget arrears in 1991-92, which forced spending cuts and created inconsistencies between macroeconomic policy and program objectives, particularly in the areas of non-salary spending norms. (c) Factors subject to the implementing agencies' control included: (i) delays in provision of training in new budgeting and accounting procedures; (ii) strategic differences between donors over construction norms, which led to delays in the implementation of some project components; (iii) indicators used to monitor project objectives were insufficiently specific and contributed to difficulties in monitoring progress in some areas (i.e., qualitative inputs in multigrade teaching, textbook availability, teacher training). F. Bank's Performance 24. Bank missions began to discuss the need for an education sector adjustment program with the GOG in early 1988, beginning the process of project identification. Dialogue between the Bank and the GOG convinced the GOG that it would be important to link sectoral policy to macroeconomic strategy. The contribution of the Bank at this point was to convince the GOG of the need to make human resources a priority within the country's development strategy and to establish a comprehensive educational policy framework. The decision to prioritize basic education and work toward an equitable expansion of the system was a substantial departure from the previous regime's educational policy, with its emphasis on higher education at the expense of other levels. 25. At the project preparation stage, the Bank's performance was highly satisfactory. Continuous dialogue between the GOG and the Bank helped to allay GOG concerns about the management complexities of linking sectoral and macroeconomic objectives. Between 1989 and 1990, the Bank provided technical and financial assistance to conduct numerous studies and seminars to enhance project development and widen ownership of the future project. 26. Project appraisal identified and clarified key issues to be addressed in sector management, budgeting, school construction and educational quality; and developed an institutional and local readiness for educational change. Prior to negotiations, impressive achievements had been made in the areas of educational policy and the development of administrative frameworks to support project implementation. IDA underestimated the needs for training in management procedures, however, and resulting Borrower delays in compliance with conditionalities for tranche release contributed to a one year delay in the program calendar. 27. The Bank's performance during project supervision was highly satisfactory. Staff turnover during project effectiveness was minimal and the Education Specialist who was the primary Task Manager was able to devote sufficient resources to project supervision.  7 28. The Bank's performance in preparing for project continuity also has been highly satisfactory. The preparation of the follow-up Equity and School Improvement Project, was carefully conducted and involved considerable community participation and study, in addition to consultation with a wide range of actors in the education sector. 29. Donor coordination was positive and productive, despite some differences in strategy and approach. Donors met regularly, with meetings taking place an average of twice monthly throughout the period of project effectiveness. 30. The relationship between the Bank and the Borrower was very positive. The Resident Mission in Conakry was helpful in project implementation and in facilitating the relationship between the Bank and the Borrower. G. Borrower's Performance 31. Following the decision to adopt a sector adjustment approach, the GOG became extremely active in project preparation and committed to implementing substantial reform. National and regional seminars encouraged awareness of key educational issues, generated enthusiasm for reform and trained Ministry staff and teaching personnel. Studies were conducted on school construction, teacher training, teaching and learning materials and equity issues. The results of the seminars and studies were used to design a sector policy framework and identify development priorities. Political conflicts, resource constraints and weak institutional capacity reduced the efficiency of the process, but overall performance in the preparation and appraisal stages of the project was satisfactory. 32. Prior to project effectiveness, the GOG complied with all IDA requests for required documents pertaining to conditionalities, and designed effective project administration procedures. During project implementation, compliance with loan conditionalities and monitoring and reporting requirements was highly satisfactory. During the first year of effectiveness, the GOG developed viable plans for the implementation of the proposed educational reforms. As this was an adjustment project, there were no major procurement issues. Procurement against a negative list decreased tranche release delays. Significant disbursement delays occurred within the context of the national budget due to insufficient coordination with the Ministry of Finance and lack of liquidity, but the Ministry ultimately disbursed 79% of the non-salary operating budget for pre-university education, which was satisfactory and exceeded targets. 33. By 1992, the PASE had mobilized public opinion nationwide in support of educational reform. It had developed an efficient administrative structure and enhanced the management skills of its staff, which will contribute to the sustainability of the project and to the effective implementation of the follow-up project. Although mechanisms designed to ensure broad government participation in support of policy dialogue in education were generally less successful than hoped for, sectoral perfornance exceeded expectations. Borrower performance is thus rated highly satisfactory. H. Assessment of Outcome 34. The project outcome was highly satisfactory. Most of the project objectives were achieved: a clear policy framework for the sector was established, educational management was strengthened, staffing norms were established and respected, financing of the sector was rationalized, and access to basic education increased. The operation supported the overall macroeconomic program, extended reforms to the education sector and increased allocations to the sector, the main goals cited in the  8 President's Report. The follow-up project, the Equity and School Improvement Project, will reinforce and expand the achievements of the PASE. I. Project Sustainability and Future Operations 35. The Bank team concentrated on the project's quality and soundness early in the project cycle, in order to increase the likelihood of sustainability. A declaration of sector policy; agreement on institutional arrangements for management restructuring, monitoring and evaluation; and commitment to meet conditions for effectiveness such as the development of a local matching fund, staffing plan, a plan to limit grade repetition, improve the textbook distribution system and guarantee minimum spending levels for pedagogical inputs were established early. 36. The likelihood that the achievements of the PASE will be financially sustained is increased by the efficiency gains, increased generation of local resources, increased ability to propose and monitor sector budgets and budgetary action plans and increased budgetary allocations from the Treasury stimulated by the project. Government projections for 1995 and 1996 show trends of incrementally increasing allocations for recurrent expenditures, indicative of the sector's continued access to sufficient resources to meet the tranche release conditionality levels of the PASE. The GOG continues to have severe resource constraints, however, and donor assistance will continue to be necessary for the operation and enhancement of the educational system over the short and medium terms. J. Future Operations 37. The PASE was designed as the first phase in a long-term reform process. The proposed follow- up project will support continued sector development, sustaining the achievements of the PASE while promoting further investment for institutional development, management improvement, and educational expansion and consolidation. The follow-up project emphasizes school- and classroom-based interventions, and promotes girls' participation in education, as well as textbook distribution, construction, and school nutrition. 38. The Equity and School Improvement Project will not be funded through a sectoral adjustment loan (SECAL), but through an investment loan. This is for several reasons: E The adjustment approach was appropriate in a time of severe crisis, when the priority was to rapidly increase the amount of funds available to the sector. It is less appropriate at present, as sector funding has stabilized at a reasonable level and the key issue is to ensure timely delivery of goods and services; * The adjustment approach was the only appropriate lending instrument when the PASE was prepared, because of the extremely low capacity of the education sector to prepare and execute budgets. Now, after three years of training and experience, the education sector is probably the most capable sector in the Government in the areas of budget management, and it is developing an acceptable oversight and audit capacity; * The Equity and School Improvement Project emphasizes school-level support for teaching and learning. This decentralized agenda means that resource distribution must be efficient. The sector must be able to respond to, and provide timely funding for, promising new strategies. This will not happen if all funds are controlled centrally and disbursed  9 sporadically by the Ministry of Finance, as has been the case during the past two years due to the country's weak macroeconomic situation. K. Key Lessons Learned 39. The key lesson to be learned from the success of the PASE is that complex projects, encompassing a range of interventions, can be successfully undertaken, if they are situated within a coherent policy framework and given intensive supervision. The PASE demonstrated the importance of long-term policy frameworks and plans for system support. The first phase of the intervention was implemented as planned and was successful. The second phase, the Equity and School Improvement Project, focuses on further improvements in enrollment and support for increasing educational quality, using the experiences gained during the PASE. 40. The following lessons apply across sectors, and may also be useful for operations in other countries in the region: * The leverage that comes from taking a broad sectoral approach can lead to meaningful changes in resource distribution across and within sub-sectors. Guinea moved dramatically towards increasing support for primary schooling, especially in rural areas, and for non-salary inputs. The success of the politically sensitive redeployment of teachers from secondary to primary classrooms is further evidence of the implications of this leverage; - The provision of external funds through the budget process, rather than through direct project financing, can result in a situation in which the sector is penalized because of implementation obstacles posed by other ministries. In a sense, this approach gives the Ministry of Finance a virtual line-item veto over budgetary expenditures. In Guinea, tranche release was delayed for six months in 1992, due to the failure of the Ministry of Finance to make budget resources available to the sector, and of the Ministry of Plan to adhere to the investment priorities of the PASE; - The development of a coherent sectoral strategy approved by the Bank can help to attract support from other donors. It can also help move donors away from programs that place heavy short-term burdens on the poor. This requires long and strenuous dialogue with top ministry officials regarding the importance of donor coordination. To the extent that government goes along with donor-assisted projects that don't reflect the government's stated priorities, valuable resources will be misallocated and/or wasted, which can have a strong negative impact on education's contribution to poverty alleviation. Although real progress was made in this regard in Guinea, constant monitoring within the sector was needed to ensure that other donor resources were used for priority projects; * There are poverty implications when sector adjustment programs linked to macroeconomic performance are adopted. For instance, although all project-related conditions for second tranche release were met, release of the tranche was held up for months, awaiting the IMF's approval of the macroeconomic framework. This exacerbated central funding delays and money was often not available when needed, particularly for the poorest, most remote rural areas. An investment approach could have alleviated this difficulty and will be used in the follow-up project; * Much greater financial sustainability is achieved when existing financial structures are used. However, training (and in countries in Guinea's situation, technical assistance) should be provided  10 to budget officers at all levels of the system before credit effectiveness, so that they will be ready to handle their greatly-increased and substantially-changed responsibilities when the funds begin to flow. 41. Both the Bank and the Borrower required two to three years to respond to identified needs with new approaches. This was about how long it took Guinea to start revising its teacher in-service and pre- service training and to start taking advantage of lessons in quality improvements learned through a multigrade teaching component. It also took that long for the Government of Guinea (in collaboration with donors, including the World Bank) to begin developing new approaches in support of girls' schooling. Experimentation and testing should be a part of all operations and much more emphasis should be placed on developing a "learning" approach.  I1 PART Il. STATISTICAL TABLES TABLE 1: SUMMARY OF ASSESSMENTS A. Achievement or Not Objectives Substantial Partial Negligible Applicable Macro policies [XX] I I I I I Sector policies [XX] [ I I II I Financial objectives [XX] I I [ I Institutional development I I [XX] I I [ I Physical objectives [XXI I I [ I [ I Poverty reduction [XX] I I [ I [ i Gender issues I I [XX] I [ I Other social objectives [I I I I I [XXI Environmental objectives [I I I I I [XXI Public sector management [XX] I I [ I I I Private sector development I I [ ] [XXI I Other (specify) [I I I [XX] B. Project sustainability Likely Unlikely Uncertain [XX]I I C. Bank performance Highly satisfactory Satisfactory Deficient Identification [XX] [ I [ 1 Preparation Assistance [XX3 [ I [ I Appraisal [ I [XX] [ I Supervision [XX] [ I [ I D. Borrower performance Highly satisfactory Satisfactory Deficient Preparation [XX] I I I Implementation I I [XXI I I Covenant Compliance [XX] I I I Operation I I [XX] I I E. Assessment of outcome Highly satisfactory Satisfactory Deficient [XXI [I [I  12 TABLE 2: RELATED BANK CREDITS Credit title Purpose Year of Status Approval Previous Operations: 1. Education I To expand and improve technical 1978 Closed: 1982 (Cr.849-GUI) training programs and strengthen the SDR 6.5 million country's educational planning and project implementation capacities. 1. Education II To improve vocational training, primary 1983 Closed: (Cr.1341-GUI) education, and manpower planning. SDR 10.2 million Redesigned at mid-term review to expand 12/31/1990 access to primary education, upgrade teacher qualifications, and improve use of vocational and teacher training facili- ties. Following Operation: Equity and School The follow-up project aims to increase 1995 Improvement Project primary enrollment and completion rates, (Cr.2719-GUI) with a strong focus on girls and students SDR 28.5 million in rural areas; strengthen decentralized management of school processes and student learning; and improve personnel and financial management. Source: Bank SARs  13 TABLE 3. PROJECT TIMETABLE Steps in Project Cycle Date Planned Date Actual/ Latest Estimate Identification February 1988 February 1988 (Executive Project Summary) Preparation November 1988 November 1988 Appraisal May 1989 May 1989 Negotiations April 1990 May 2-4, 1990 Letter of Education Policy October 1989 October 1989 Board Presentation June 1990 June 1990 Signing July 1990 September 28, 1990 Effectiveness November 14, 1990 January 14, 1991 First Tranche Release January 1991 January 1991 (if applicable) Mid-term Review June 1991 February 1992 (if applicable) Second Tranche Release January 1992 March 2, 1993 Third Tranche Release June 1992 March 8, 1994 Project Completion June 30, 1993 June 30, 1994 Loan Closing June 30, 1993 June 30, 1994 Sources: Bank IEPS, FEPS, SAR, Supervision reports.  14 TABLE 4: CREDIT DISBURSEMENTS: CUMULATIVE ESTIMATED AND ACTUAL (IN US$ MILLION) * Calendar Year 1991 1992 1993 1994 Appraisal Estimate 4,000,000 6,000,000 13,000,000 20,000,000 Actual 4,371,079 6,536,698 14,030,415 21,524,132 Actual as % of 109% 109% 108% 108% estimate Date of March 8, 1994 final disbursement * This was an adjustment credit, consisting of three tranches. The first tranche was disbursed in two parts. Fluctuations in the value of the SDR account for the uneven dollar amounts. Source: SAR and LOAAF  15 TABLE 5: KEY INDICATORS FOR PROJECT IMPLEMENTATION A. Policy Measures Estimated Actual 1. Adopt the Statement of Sector Policy as the overall framework for 1990-94 1990-94 guiding Govt. and donors interventions in the sector. 2. Develop decentralized mechanisms for funding school-level 1991 1992 activities. 3. Introduce new school construction standards to reduce capital costs, 1990 1991 based on the use of local materials. 4. Establish minimum spending norms for non-salary inputs for 1990 1991 teaching materials: a) Primary/pupil/year: GF 2800, or the equivalent of US$4.0 b) Secondary level: the equivalent of US$15.0 c) Technical schools: the equivalent of US$86.0 d) Teaching Training: the equivalent of US$153.0 e) Higher Education: the equivalent of US$430.0 Establishing minimum spending norms for non-salary inputs for operation spending/administration staff. f) Staff/year: GF 210,000 or the equivalent of staff/Year US$300 5. Establish specifications for the production of school books and 1990 1991 other supplies. 6. Promote private education at all levels: a) Facilitating access to land and building permits b) Limited subsidies for non-salary learning materials. 7. Match funds of local community initiatives in school construction 1991 1992 8. Increase education allocations: 1992 1993 a) Overall, to increase proportion of education budget expenditures to 18% of total budget. b) Increase budget for primary education, to 35% of total education budget. * As no performance indicator table was provided in the SAR or the President's Report, these have been assembled from the Tranche Release Conditionalities.  16 TABLE 6: KEY INDICATORS FOR PROJECT OPERATION Project Impact to be Actions Being Taken Issues Remaining Actions Maintained Planned Decentralized funding To be supported by Equity and Decentralized audit Personnel for for school-level activities School Improvement Project capacity does not yet decentralized exist audit unit have been hired and will be trained Use of new school To be supported by Equity and Weak technical capacity NGO construction standards School Improvement Project of construction unit management of construction currently being pilot tested Maintenance of Included in Govt.'s statement of Non-salary operating Annual budget established budget Education Sector Policy budgets remain low review allocations between levels & items. Use of specifications for MEPUFP staff in process of Coordination with Join missions production of books & developing detailed USAID remains to be with USAID supplies specifications defined and annual reviews Expansion of private To be supported by Equity and Potential for expansion Pre-investment education School Improvement Project is unknown studies Maintain staff Training programs being Secondary school -level Functional audit redeployment & continue developed with French Ministry inefficient use of of secondary recruitment & training of Cooperation support personnel schooling  17 TABLE 7: STUDIES INCLUDED IN PROJECT Study Purpose as defined at Status Impact of the study appraisal/redefined 1. Girls' Education To survey school Completed at Ap- Influenced enrollment of girls in praisal development of the country, with policies promoting special attention to girls' education. situation in rural areas. 2. Survey of School Classroom level study Completed in March Results used to Enrollment of Girls in to determine barriers to 1994 develop Equity and Rural Areas. girls' participation in School Improvement education, and develop Project. strategies to increase girls' participation and achievement. Also exa- mined effects of educa- tion on girls' lives and communities. 3. Higher Education Examine the quality and Completed. Used to develop efficiency of higher strategies to education, determine reorganize higher development priorities. education in the Examine the costs and Higher Education future financing of non- Management pedagogical living Support Project. expenses for higher education students, as a basis for gradual containment of govern- ment spending in this area. 4. Study on Technical To review technical, Completed Contributed to Education and vocational and profes- Government's Training. sional training, at post- Statement of Policy primary and post- for Vocational secondary levels. Training. Source: Bank Reports.  18 TABLE 8A: PROJECT COSTS Not applicable, as credit financed general imports, subject to negative list. TABLE 8B: PROJECT FINANCING Appraisal Estimate (US$M) Actual/Latest Estimate (US$M) Source Local Foreign Total Local Foreign Total Costs Costs Costs Costs (n/a) 1/ (n/a) (n/a) (n/a) IBRD/IDA 20 21.6 Cofinancing Institutions 24 38.1 (USAID, FAC) Other External Sources Domestic Contribution Total 44 59 .7 1/ Not applicable, as credit financed general imports, subject to negative list. TABLE 9: ECONOMIC COSTS AND BENEFITS No efforts were made at appraisal to estimate net present value (NPV) or economic rate of return (ERR), and therefore there is no baseline against which to compare current estimates. Furthermore, no parameters were given at appraisal with regard to cost-effectiveness  TABLE 10: STATUS OF LEGAL COVENANTS DCA DESCRIPTION OF COVENANT PRESENT ORIGINAL REVISED COMMENTS REFERENCE COVENANT TYPE STATUS FULFILL- FULFILL- MENT MENT DATE DATE Article 1, Section 2.01 para.9, shall be modified to read General Conditions C N/A Section 1.01 a) project means the imports & other activities that may be financed out of the proceeds of the credit pursuant to the provisions of Schedule I to the DCA. Article I, Section 9.09 c) shall be modified to read: not General Conditions C 12/93 12/94 Section 1.02 b) later than 6 months after the closing date or such later date as may be agreed for this purpose between the Borrower & IDA, the Borrower shall prepare & furnish to IDA a report, of such scope & detail as IDA shall reasonably request, on the program referred to in the preamble to the DCA, the performance by the Borrower & IDA of their respective obligation under the DCA & the accomplishment of the purposes of the credit. The Borrower & IDA shall from time to time, at the request of either party, exchange views on the progress achieved in carrying out the program & the actions specified in schedule 3 of c N/A N/A this agreement. Article III, Prior to each such exchange of views, the Monitoring/reviews C N/A N/A Section 3.01 b) borrower shall furnish to IDA for its review & comment a report on the progress achieved in carrying out the program, in such detail as IDA shall reasonably request. Article III, Except as IDA shall otherwise agree, Procurement C N/A N/A Section 3.02 procurement of goods to be financed out of proceeds of the credit shall be governed by the provisions of schedule 2 to this agreement.  Article III, The borrower shall: i) have records & accounts Accounts C N/A N/A Section 3.03 a) referred to in para a) of this section including those of the Special Account for each fiscal year audited, in accordance with appropriate auditing principles consistently applied, by independent auditors acceptable to IDA; ii) fumish to IDA as soon as available, but in any case not later than three months after the end of such year, a certified copy of the audit report by said auditors, of such scope & detail as IDA should have reasonably requested; & iii) fumish to IDA such other information conceming said records & accounts & the audit thereof as IDA shall from time to time reasonably request. Article 111, For all expenditures with respect to which Audits C N/A N/A Section 3.03 c) withdrawals for the credit account were made on the basis of SOEs, the Borrower shall: i) maintain or cause to be maintained, in C accordance with para a) of this section, records & accounts reflecting such expenditures; ii) retain, until at least one year after IDA has received the audit reports for the fiscal year in which the last withdrawal from the credit account was made, all records (contracts, orders, invoices, bills, receipts & other documents, evidencing such expenditures; iii) enable IDA's representatives to examine such records; and iv) ensure that such records & accounts are included in the annual audit referred to in para b) of this section & that the report of such audit contains a separate opinion by said auditors as to whether the SOEs submitted during such fiscal year, together with the procedures & intemal controls involved in their preparation, can be relied upon to support the related withdrawals. Source: DCA and Supervision Reports.  21 TABLE 11: COMPLIANCE WITII OPERATIONAL MANUAL STATEMENTS. BORROWER COMPLIED WITH ALL OPERATIONAL MANUAL STATEMENTS. TABLE 12: BANK RESOURCES: STAFF INPUTS Stage of project cycle Planned Revised Actual Weeks US$ Weeks US$ Weeks US$ Through Appraisal N/A N/A 69.40 208,200 116.9 * 205,900 Appraisal through Board 25.40 76,200 11.9 121,200 Approval Board Approval through 10.40 31,200 20,400 Effectiveness Supervision 68.40 205,200 122.7 244,200 Completion _ 08.00 24,000 2.0 33,000 Grand Total 181.60 544,800 253.5 704,700 Source: Bank Supervision Reports * Based on an average cost of US$3,000/week.  TABLE 13: BANK REsouUcES; MISSIONS STAGE OF PROJECT CYCLE MONTII/ NO.OF DAYS SPECIALIZED PERFORMANCE RATING TYPES OF PROBLEMS YE-AR PERSONS IN STAFF SKILLS FIELD REPRESENTED IMPLEMEN- DEVELOP- TATION MENT STATUS IMPACT THROUGH APPRAISAL 1/88 2 13 A,EP, N/A N/A N/A 4/88 2 9 EP,E 10/88 I 7 EP, 11/88 6 20 A,E,EP,ES, 4/89 I 5 EP, APPRAISAL 6/89 I 14 EP, N/A N/A N/A THROUGH BOARD 9/89 4 18 E,A, APPROVAL 12/89 1 18 EP, 2/90 I 30 EP, BOARD APPROVAL 10/90 3 12 EP,A, THROUGH EFFECTIVENESS 1 3A SUPERVISIONS 5/91 3 13 SE,E,GE, 2 2 5/91. Project implementation has not advanced as planned. First, counterpart funds have not been nmade available by the 10/91 3 10 SE,GE, 3 2 Treasury to the MOE and second, the MOE's Direction dec 2/92 4 16 SE,GE,A, 2 2 ~~~~~~~~~~~~~~Affaires Adminitradnes el Fi,sancilres (DAAF) has failed to 2/92 4 16 SE,GE,A, 2 2 institute the required procedures. 6/92 2 3 SE,OA, 2 2 7/92. Serious budget/management problens have hampered 11/92 3 9 SE,A, 2 2 project implementation. 2/93 4 10 SE,A,OA, 2 2 11/92. Ministry of Finance's failure to respect invesunent budget provisions has delayed construction. Failure to respect 5193 4 12 SE,E,OA, 2 2 operating budget provisions means that 1992 conditionlities 10/93 I 11 SE, I relating to expenditure levels are unlikely to be met. Overall Governrent monitoring continues to be disappointing. 2/93. Sector financing remains inconsimtent and is characterized by delays of approximately 6 months. Tl Comsi de suiW has not met since February 1992. Government ha not yet prepared a conmprehensive in-service traiing progrm for recently redeployed teachera, nor has it reorganized its pre-service training program. 5/93. Government has been slow to prepae a comprehensive in-service tnining program for recently redeployed teachers. ______________________ 10/93. h-ser~~~~~~~~~~~~~~~~~~~~Wvi ce training programs are lagging. COMPLETION 11/94 I 14 GE, I I SPECIALIZATIONS: A ARCHITECT, E= ECONOMIST, ED= EDUCATOR, OA=OPERATIONS ANALYST, SE= EDUCATION SPECIALIST, EP= EDUCATIONAL PLANNER, GE=GENERAL EDUC PERFORMANCE RATINGS:I=PROBLEM FREE OR MINOR PROBLEMS, 2=MODERATE PROBLEMS, 3=MAJOR PROBLEMS WITH SOLUTION UNDERWAY, 4 =MAJOR PROBLEMS WITHOUT SOLU UNDERWAY (NONE IN THIS PROGRAM).  23 Appendix A Page 1 of 9 APPENDIXES Aide-memoire Mission de la Banque Mondiale en Guin6e 13-28 Novembre 1994 Programme d' Ajustement Sectoriel de l'Education (le PASE) A: D6buts 1. Dans le cadre du rapport de fin de projet du PASE, une mission de la banque mondiale a effectue une visite en Guin6e entre le 13 et le 28 novembre 1994. La mission etait men6e par Naim Atiyeh, consultant pedagogue, sp6cialiste des sciences de 1'education et de la psychop6dagogie. 2. La mission avait pour objectifs: a) la mise a jour des donn6es qualitatives et quantitatives touchant au fonctionnement du projet PASE, et ayant rapport a l'evaluation du projet du point de vue de l'IDA. b) des rencontres et des entretiens avec les directions du projet et de leurs collaborateurs pour une appreciation d'ensemble des succes et faiblesses du PASE, c) la visite aux ecoles multigrades dans les regions rurales, d) la coordination avec la famille du PASE pour assurer la pr6paration de la Section II du rapport final qu'il leur revient a r6diger du point de vue de la Guinee, e) une saisie de l'etat de l'environnement administratif et financier qui entoure le plan d'operation a l'appui de la p6rennit6 du PASE. B: Deroulement de la mission: a) La mission en Guinee a debute en compagnie de Mr. Ch6rif Diallou par une visite de courtoisie a son excellence le Ministre de l'Enseignement Pre-universitaire et de la Formation Professionnelle, Madame Aicha Bah, qui a tout gracieusement explique la conception qu'elle se fait de la reforme au niveau du PASE, et de la satisfaction qu'elle lui accorde, ne manquant pas toutefois de signaler les difficult6s auxquelles le projet ne cesse de se heurter. Les principes directeurs, a son dire, sont la volonte ferme de l'Etat, la determination des directions en charge du PASE et de leurs collaborateurs, et la motivation generale dans la plus grande majorite du pays.  24 Appendix A Page 2 of 9 b) Grace a la bienveillance du Coordinateur National du PASE, Mr. Saidou Souare, un plan de travail fut vite esquisse, donnant l'impulsion a l'ex6cution des taches imparties a. la mission, malgre certaines difficultes au demarrage qui meritent d'etre bientot signalees. c) Les contacts furent entrepris au niveau de toutes les structures du PASE, soit a titre individuel, soit dans le cadre des s6ances de travail organisees avec le Secr6taire General, les membres du Secretariat Technique et de ses consultants, le SSP, la SCTP, les Directions nationales de l'enseignement, le comit6 de r6daction du rapport ICR, l'IPN, la cellule budg6taire de la DAAF et la Direction Prefectorale a Dubreka, sans omettre la part due aux directeurs et enseignants des classes multigrades dans cette r6gion et aux eleves a leur charge. d) La mission remercie vivement la famille du PASE pour l'appui qui lui fut accord6 durant son sejour, et exprime ses souhaits sinceres pour une Guinee a la hauteur des aspirations que le PASE represente. e) Au personnel de la mission residente de la Banque Mondiale a Conakry, un grand merci pour la bonte et la gentillesse de leur accueil, et surtout pour l'efficacite de leurs services malgre l'intensite des missions en Guinee a present. C: Taches: .a) Mise a jour des donn6es: - Le controle des donnees que la mission recherchait devait en premier lieu s'effectuer au niveau de la DAAF, comme point de d6part sur la piste a poursuivre par la suite. Mais due a une coincidence malencontreuse, le Directeur qui avait accompagne le PASE des ses premieres demarches, le feu Amadou Sadio Diallo, venait de mourir, et le Directeur par interim, Mr. Sow devait accomplir une mission a l'etranger pour toute la duree de la presente mission. - Grace aux bons soins du Coordinateur National, un programme alternatif fut vite mis en place, permettant a demarrer au niveau du SSP et de la SCTP. - Une premiere seance a group6 le consultant de la Banque, le Directeur du SSP, Mr. Bakary Diawara, et tous les Chefs de Section: carte scolaire, Statistiques et Informatiques, Promotion de l'Enseignement Prive, et Statistiques et Planification. Le dialogue a permis de clarifier la nature des donnees recherchees et de leur utilite pour l'analyse contemplee, et d'orienter le consultant aux ressources disponibles pour cet exercice.  25 Appendix A Page 3 of 9 - Encore a travers le dialogue, entame soit individuellement soit en seance avec les 6quipes de travail, il s'av6rait possible, malgre une certaine r6ticence qui marquait les premiers abords, d'examiner en profondeur le style de travail, et d'apprecier plus ou moins objectivement les caract6ristiques distinctives des differentes 6quipes impliquees dans le PASE. Et clest bien l'une des donnees qui va permettre d'appr6cier a juste titre l'6tat de l'environnement dans lequel l'apres PASE se prepare. - Quant aux documents recherches, il est a noter que le manque d'equipement et la penurie des facilit6s mat6rielles n'ont pas empech6 les fonctionnaires de contourner les difficult6s rencontrees, et ceci Grace a une volonte de servir et de se plier aux exigences du travail. Des donnees presumees fiables ont et6 fournies dans le cadre du systeme en cours. - L'apport du conseiller technique du PASE, Mr. Joseph Brandolin, qui a mis a la disposition de la mission tout l'arsenal de la documentation qu'il possede et la somme de ses r6flexions sur le PASE, a fourni un eclairage tres apprecie, et a precise un nombre de problemes qui meritent d'etre adress6s avec soin. D'autre part, Mr. Tolivert, conseiller technique repr6sentant le USAID, a son tour, a clarifi6 certains autres aspects concernant les dispositions relatives aux manuels scolaires. - Au niveau de la SCTP, plusieurs r6unions avec le Directeur, Mr. Abou Soumah et son equipe ont permis de reconstituer la situation du secteur de la construction et de l'6quipement dans le cadre du PASE, ce qui fait bien ressortir l'importance de la restructuration envisagee dans le cadre de la p6rennit6 du PASE. - A leur tour, les analyses preparees par la DAAF des ann6es 1990, 1991, 1992, 1993, 1994, avec les projections pour les ann6es 95 et 96, permettent d'extraire un certain nombre d'indicateurs utiles aux analyses du rapport de fin de projet. Durant l'absence du Directeur par interim, Mr. Ahmadou Sow, le controle d6sir6 fut repris avec l'assistance de Mr.Ibrahima Youri Diallo, et Mr. Babaen Barry, Chef de la Cellule de Gestion des Fonds de Contrepartie. A plusieurs reprises, il etait n6cessaire de reviser les informations donnees en vue d'un meilleur contr8le, a la lumiere de la loi des Finances, et afin d'elucider les inconsistances apparentes entre les documents en circulation. La plupart des ecarts not6s semblaient etre dus a des decalages entre les p6riodes des revues envisag6es. .- Les seances avec le Directeur de l'Enseignement Secondaire, Mr Clotaire Maomy, le Directeur de 1' IPN, Mr. Al-Hadj Alpha Boubacar Barry et ses Chefs de Section, et Mme Passy Kourouma, Coordinatrice du comit6 de l16quit6, ont apport6 des eclaircissements tres importants pour une evaluation plus compr6hensive du systeme 6ducatif en Guin6e.  26 Appendix A Page 4 of 9 - b): Rapport Final relevant de la Guin6e Dans ce cadre, Mr. Souare, avec la promptitude qu'on lui reconnait a aussitot pris les dispositions n6cessaires pour la selection d'un comit6 de redaction, compos6 de quatre collaborateurs choisis parmi les chefs des directions et sections du MEPU-FP. .- L'exercice a debute par une seance de travail sous la presidence du Secr6taire Gen6ral, Mr. Ali Badara Doukoure, la pr6sence de Mr. Souar6, et de celle des membres du comite, dont les personnes suivantes: - Mr. Alaman Cond6, Inspecteur General Adjoint de l'Education, - Mr. Bakary Diawara, Directeur de la Section SSP, - Mr. Ousman Paraya Balde, Chef Service Information et Documentation,(SINDA), - Mr. Ibrahima Youri Diallo, Responsable du Centre Informatique. Sur la suggestion de Mr. Doukoure, plusieurs s6ances de travail, rassemblant les membres du comit6 de redaction, se sont bien adress6es a la structure et au contenu de l'exercice en question, afin de mettre en place par la suite un plan expeditif pour son ex6cution. Ce qui a ete vite fait. .- Dans une premiere seance, le consultant a explique les objectifs du ICR, comme envisages par la Banque, il a mis a la disposition des membres un plan de r6daction touchant a toutes les composantes du projet, en conformite avec les directives de la Banque. Plusieurs copies du rapport Guineen du Second Projet (cr6dit-1341) leur ont ete egalement remis, non seulement pour servir comme modele, mais aussi pour leur permettre de faire la liaison entre les acquis des projets precedents et du projet actuel de normalisation, le PASE. . - A la lumiere du document exp6die par la Banque Mondiale evoquant les differentes composantes du rapport, et fournissant des pr6cisions sur le contenu de chacune, les membres pr6sents se sont vite partage l'exercice, selon leurs domaines d'expertise et d'experience respectifs. Au besoin, le concours d'autres r6dacteurs dont l'apport pourrait enrichir ou rendre plus objectifs certains aspects du contenu est a souhaiter. .- Une avant-derniere seance de travail, pr6vue pour le 26 Novembre, 1994, devait rassembler les directeurs nationaux et d'autres collaborateurs, pour un debat autour des propos a etre present6s par le comite de redaction, et surtout pour un examen collectif approfondi des lecons a tirer de l'exp6rience si riche du PASE. Pour des raisons de disponibilite, cette r6union fut annulee. .- Le 28 Novembre, une reunion finale du comit6 de r6daction a  27 Appendix A Page 5 of 9 permis de faire une mise a point pour l' int6gration des differentes parties du rapport. .- Pour plus de coh6rence, le rapport fera l'objet d'une nouvelle refonte, qui constituera la premiere version a soumettre aux sup6rieurs. Un dernier remaniement sera tente en fonction de l'envergure des changements ou des mises'aN point exig6s. .- Quoiqu'il aurait prefere etre notifie suffisamment a l'avance, Mr. Souar6, sachant l'importance des echanges qui doivent avoir lieu entre la Banque et le Gouvernement avant de finaliser le rapport, tient a rassurer qu'il tachera de son mieux de terminer le travail conformement aux delais accord6s. Une premiere version sera bient8t remise a la Banque, dans les meilleurs d6lais. I1 est a noter que l'absence de Mr. Ahmadou Sow s'est faite bien sentir au niveau de la collecte des donnees, a tous les niveaux. .- Vu l'enthousiasme avec lequel on aborde le sujet, le consultant est rassur6 que le rapport sera remis a temps. c). Les Classes Multigrades: - La visite des classes multigrades etait un point focal dans le cadre de cette mission. Par les soins du Coordinateur du Comite de Pilotage, et le Directeur National de l'Enseignement Primaire, Mr. Amadou Sadio Diallo, une visite a la region de Dubreka a ete execut6e en compagnie d'un repr6sentant de l'enseignement primaire, Mr. Patrice Kourouma. La mission fut pilotee dans une des voitures 4x4 du PASE. Malgre le grand retard du au blocage des routes a la sortie de la capitale, et d'une panne dont on a ete victime au retour, la visite a 6te menee a bonne fin. .- A Dubreka, la mission fut recue par Mr. Talibi Cisse, Inspecteur de l'Enseignement 6l6mentaire, et Directeur DPE. A la suite d'un apercu general qu'il a donne de l'etat de l'enseignement dans son directorat, Mr. Talibi a accompagn6 la mission dans deux 6coles a une distance de 30 ou 35 kilometres l'une de l'autre, ou des classes multigrades 6taient en session. .C1 - La classe de khorira .- La premiere visite de classe fut a l'6cole 6lementaire de Khorira. La classe etait en s6ance. Des notre arriv6e, les enfants se sont leves pour nous saluer en chorale, et, de nouveau, a la demande de l'instituteur, ils ont repris le travail. .- Dans cette salle de classe, il y avait deux groupes pedagogiques, les eleves de premiere annee au nombre de 38, et les eleves de troisieme ann6e au nombre de six, garcons et filles.  28 Appendix A Page 6 of 9 Les enfants se distinguaient par leur bonne tenue, leurs bonnes manieres, et leur courage devant les 6trangers. A juger de leur taille, on pouvait trouver des enfants de tous les ages, entre 7 et 13 ou 14 ans, bien entendu. .- Une fois la mission a pris place, l'instituteur s'est remis a son plan de travail qui etait bien note au tableau noir. Les methodes appliqu6es relevaient du principe de l'enseignement actif. Sans s'attarder aux d6tails, la performance de l'instituteur refletait bien sa maitrise de l'esprit de la pedagogie progressiste. Ce qui manquait, peut-etre, c'etait le mat6riel didactique. A d6faut, le tableau noir se faisait roi, avec l'appui de petits panneaux en ardoise . C2. La classe de Kanqolea: A Kangol6a, la classe avait egalement deux groupes p6dagogiques, la premiere ann6e avec 23 eleves, (11 filles et 12 garcons), et la cinquieme annee avec 8 eleves, dont 2 filles et 6 garcons. Le plan de travail etait bien specifie au tableau, avec les details du contenu en lecture ou en arithm6tique, et des dessins. La aussi, l'instituteur a bien suivi l'esprit des m6thodes d'activit6s, ayant recours a la methode de "role playing", et de la simulation. Les enfants eux-memes prenaient la parole pour reformuler la question et la poser a leurs camarades, par imitation & un enseignant. Outre les avantages linguistiques qui pourraient en decouler, c'est bien la un apprentissage qui intervient assez t6t pour la formation a l'enseignement. Avant de passer au groupe pedagogique de 5ieme annee, l'instituteur eut soin de donner du travail au groupe des petits, comme prevu dans son plan. Pourtant, l'esprit d'improvisation n'en manquait pas. .- Avant la rentr6e, l'entretien avec le Directeur, Mr. Talibi Cisse, donnait beaucoup d'espoir au sujet de l'avenir de la methode des classes multigrades. Reste a savoir si cette m6thode etait la r6ponse aux problemes multiples poses par la question de la scolarisation au niveau des regions rurales, ou si c'etait juste une methode d'enseignement qui meritait d'etre promue et developp6e a son propre compte en raison de ce qu'elle a comme valeur p6dagogique. D: Environnement et P6rennit6 Pendant le d6roulement d'une mission si courte pour un projet si vaste, il est assez difficile de faire la part de chacun des vecteurs multiples qui rentrent en jeu. Une saisie intuitive de la situation risquerait d'etre partiale, vu la contagion de l'enthousiasme qui vous prend a l'improviste une fois en rapport  29 Appendix A Page 7 of 9 avec les meneurs de la croisade du PASE. Et ceci n'engage que la personne du consultant. Cependant, grace aux analyses et aux reflexions partagees avec les repr6sentants des instances dirigeantes et des organismes sur le terrain, il semble assez aise de tracer la ligne entre le reve et la realite . Le PASE n'est pas un projet, c'est un pays a l'6veil, mais oa les aspirations risquent d'offusquer le vecu. Et c'est dans ce sens que l'on peut sinon deja faire le point, au moins peut-on soulever certains problemes intervenant dans le quotidien du Ministere, comme l'appareil d'execution de la reforme. Les questions a ce sujet, d'ordre un peu general, se posent aux niveaux de l'appui supplementaire qu'il faut apporter au secteur de l'education, en vue de la rehabilitation manageriale de l'organe administratif et du plan, et de l1'laboration d'une philosophie de l'education dans le pays. L'6ducation pour tous, mais quelle education? - Au niveau de l'appareillage d' execution, il faudrait avant tout projet de grande envergure reconnaitre que toutes les Directions sont relativement demunies de moyens efficaces. Un r6seau exp6ditif et a bon marche pour la communication est un cas d'urgence. - Malgr6 lexpertise technique et professionnelle dont la plupart des Chefs de Section et de leur encadrement ont fait preuve, il est 6galement urgent de continuer a renforcer leur formation et a leur offrir l'appui d'un encadrement a la mesure des t'aches imparties. - La restructuration qui est en cours se base sur des principes qui donnent l'espoir d'un assainissement ou d'une rationalisation encore plus pousses. Entre autres, cependant, elle doit envisager une coordination plus lucide dans la melee des bailleurs de fonds et des consultants. Les divergences dans le style d'action et des perspectives theoriques pourraient engendrer des 6cueils. - La mise en oeuvre de l'evaluation nationale de l'6ducation est une demarche de grande importance. C'est une activit6 qui merite d'etre poursuivie pour les diagnostics comparatifs, mais en tenant compte de la necessite de monter dans le proche avenir un dispositif structure pour l'evaluation des accomplissements scolaires. Ce sont la deux activit6s qui se completent , mais dont chacune a son domaine propre et son outillage. Sans un effort serieux pour les harmoniser, un dedoublement inutile pourrait se creer. - Les manuels scolaires et les materiaux pedagogiques posent encore un probleme qui est loin d'etre resolu, que ce soit au niveau de leur composition ou de leur acquisition par les eleves, La mission attend toujours le bilan des manuels produits et distribues dans le cadre du PASE. - Le developpement d'un milieu plus favorable a l'apprentissage  30 Appendix A Page 8 of 9 surtout dans les regions rurales, ou les parents ne connaissent pas la langue francaise a besoin d'etre mis en place, au moins sous la forme d'un programme de soutien qu'on leur offre dans la preparation de leurs lecons. La oa la valorisation de l16ducation n'est pas un souci immediat, il faut bien un soutien tout particulier aux enfants scolaris6s. - la necessit6 de la mise en place d'un programme pour la modernisation du systeme d'6valuation des accomplissements scolaires. Des echelles adapt6es a la culture de la Guin6e pour la mesure du developpement mental, academique ou de la personnalit6 sont n6cessaires. Elles permettront non seulement d'aboutir a une meilleure rationalisation de l'evaluation objective des succes et faiblesses du systeme 6ducatif, mais aussi et surtout d'aider les conseillers scolaires a faire un diagnostic valable pour organiser l'enseignement de perfectionnement dont les 6chou6s ou les non- doues ont besoin. - Les inadapt6s scolaires constituent un segment jusque-la meconnu. Malgr6 les difficultes economiques, il lui faut une place, quoique minime, dans toute planification. - Les progres accomplis au niveau de la qualit6 de l'enseignement primaire vont certainement dans la direction d'augmenter la demande pour l'enseignement secondaire sans qu'il y ait eu des mesures pour repondre a cette heureuse eventualit6. Dans cette optique, le PASE II devrait reserver une part plus large au profit de l'enseignement secondaire. Deja la Direction de l'enseignement Secondaire accuse un besoin pour le recrutement de 400 professeurs contractuels, qui sont pris en compte dans l'avant-projet du budget pour l'ann6e scolaire, sous la rubrique: autres depenses. - Malgre son besoin d'etre encore techniquement renforc6, l'environnement social au niveau des ressources humaines inspire beaucoup de confiance. Cependant, la survie du PASE fait face au danger de la d6gradation de l'environnement physique et mat6riel, vu l'accroissement de la demande projetee a l'avenir tres proche qui risque de d6border les capacites du systeme educatif avec ses ressources actuelles et d'aboutir a une explosion scolaire tres forte. L'apport d'un systeme d'appui sous la forme d'un enseignement priv6 valoris6 et maintenu sans 6litisme est a souhaiter. . - Au niveau du taux des natalites, la famille planifi6e est une option a 6tudier. Dans beaucoup de pays, elle a d6ja fait ses preuves. - La restructuration proposee a l'avenement du PASE II fera l'objet d'un examen plus approfondi dans le cadre du rapport final. I1 faut cependant noter dans l'immediat que l'organisation de l'inspection de l1education et la d6finition de ses fonctions et comp6tences, en  31 Appendix A Page 9 of 9 rapport avec les directions nationales, meritent une attention toute particuliere. L'inspection n'est pas simplement un service d'appui, c'est un poste d'avant-garde dans le cadre de la r6forme. Au meme titre , il faudrait peut etre faire une distinction plus claire entre l'inspection d'ordre administratif et celle d'ordre professionnel et pedagogique. - Et pour conclure, la mission note que les realisations accomplies dans le cadre du PASE promettent de cr6er un environnement favorable a la p6rennit6 du projet, surtout au niveau de la volonte et de l'engagement politiques. D'un cot6, une nouvelle declaration de la politique de l'enseignement est en gestation pour marquer les nouveaux objectifs a atteindre. Le Gouvernement, en effet, redouble ses efforts pour entamer la seconde phase du PASE. Le ralentissement apparent dans les ressources allouees au fonctionnement du secteur ne semble presenter aucun risque compromettant, puisque les projections sont destin6es aux travaux de maintien et non au compte d'achats. - Sans omettre la part due au secteur de la formation professionnelle et de l'enseignement technique, le consultant voudrait terminer, en n'engageant que lui-meme, sur le theme du charisme conjugu6 avec le d6veloppement institutionnel. Il me semble bien, en effet, que le succes accompli dans le cadre du PASE est dans une bonne mesure le reflet d'une direction 6clairee et inspir6e, mais qu'il faudrait profiter de cette conjoncture pour recourir a un d6veloppement plus enracin6 au niveau des institutions. C'est a elles que revient le pouvoir d'assurer la survie du PASE, et de lui conserver l'6lan vital qui lui est imparti. Facile a dire, beaucoup moins a realiser. Mais le PASE est un bon travail commence, et qui merite d'etre complet6. .- La mission remercie le Ministre du MEPU-FP, son excellence Mme Aicha Bah, pour avoir accorde a la mission une derniere seance de revision tenue avant le d6part du consultant ou certains problemes souleves par les diff6rentes instances durant la mission ont et6 clarifi6s et expliques; a Mr. Doukour6, le Secr6taire G6neral pour la vision d'ensemble qu'il a tenue a partager avec le consultant avant son d6part, et a Mr. Souare pour l'appui qu'il a si g6n6reusement apport6 tout au long. Conakry, le 28 Novembre,1994 Naim Atiyeh Consultant  32 Appendix B Page 1 of 3 Education Sector Adjustment Credit (PASE) Implementation Completion Report Borrower Contribution to the ICR Translation and Summary of the Borrower's Evaluation February, 1995-Conakry 1. The Guinean Government adopted a Statement of Education Sector Policy in 1989 to provide the overall framework for changes in the sector. This statement was in line with the decision taken in 1984 to restructure the education system, to improve teaching and training and to strengthen management and administrative capacities within the education sector. As a direct result of this global vision for educational improvement, the Education Sector Adjustment Program was put in place in 1990. This program started with three donors (the World Bank, which took the lead role, USAID, and the FAC). Over the four years of implementation of this program, it expanded to include support from approximately 20 donors. 2. Operationally, the program was conceived of as consisting of four principal components: (i) strengthening management and administrative capacity, including development of a more responsive organizational structure, preparing a functional audit of the Ministry, and developing management software; (ii) rationalizing the use of personnel through redeployment of teachers and administrators to primary school classrooms, establishing new teacher guidelines, and expanding the in-service program to include training for multigrade classes; (iii) improving the quality of classroom-level infrastructure and materials, including a large construction and rehabilitation program; and (iv) revising programs and curricula, including production of new textbooks and preparing a broad-based evaluation of the school system. Implementation of these activities was successfully completed, albeit somewhat behind schedule because of administrative red tape, budget shortfalls, etc. The administrative barriers included such things as delays in donor funding, a lack of coherency in the timing of donor financing and the local budget cycle, and the complexities of the financial operations and procedures within the Ministry of Finance. 3. One particular area that suffered from the delays in donor financing, especially in 1992, was the construction program. The weakness of the regional construction offices (SCTP antennae) also contributed to putting the construction program behind schedule. Ultimately, the unavailability of Government financing for this component was made up by counterpart USAID funds (PL480), PGI- Lome III and IV funds, the European Development Fund, and the French SASS. Delays in this component were largely responsible for the project closing a year behind schedule (in June 30, 1994), although in fact, delays in satisfying other conditionalities were also a factor in the delayed tranche releases. 4. Under the project, the priority was given to rural schooling. A total of 156 classrooms were built and 200 renovated as pilot initiatives to test low-cost procedures. In addition, more than 20,000 desks and storage closets were built and distributed. Other donors built 677 classrooms under the broad PASE program and significant efforts were made to improve the level of support given by central and decentralized education offices in support of these and other school improvement initiatives.  33 Appendix B Page 2 of 3 Project Costs 5. USAID contributed US$ 22.3 million, of which 80 percent was to be used for debt service and 20 percent for the country's investment budget. USAID also contributed an additional amount of US$ 5.7 million to finance technical assistance, scholarships and equipment. IDA granted a credit of US$20 million. F.A.C. contributed 71 million FF for technical assistance, training and equipment. 100 percent of donors' contributions were used. Results 6. The principal results of the project were the following: (a) The DAAF was restructured and strengthened, especially in computerization and the action plan costing and the national budget for education increased from 14 percent in 1990 to 25.2 percent in 1993, of which 35 percent is dedicated to the primary level; (b) The human resource management plan began to be implemented in 1991 and resulted in the publication of work regulations for teachers and the redeployment of 1806 teachers from the secondary level to primary classrooms. 8000 teachers participated in in-service training; and 46 professors for teacher training colleges and 111 pedagogical counselors/teacher trainers were trained; (c) 1500 classrooms were built with the use of international resources and 1500 were built with purely local resources, for a total of 3000 new classrooms. Also, a renovation program for schools and administration buildings throughout the country was implemented, under the supervision of regional units of the school construction service; (d) Schools were supplied with equipment, textbooks and pedagogical materials, which is improving teaching and learning conditions in classrooms and encouraging local spending on education; (e) National schooling goals have been redefined; and (f) The institutional development component produced personnel norms, which have been adopted by the Government; a computerized personnel management system, some decentralization; and increased organization of planning activities. 7. These results have had a strong impact on poverty reduction through employment creation, introduction of new agricultural and production techniques at school and increasing girls' schooling. On a more general level, political interest in schooling has increased, with consequential increases in the percentage of the national budget allocated to education, and improvements in resource allocation between education sub-sectors.   35 Appendix C Page 1 of 1 TRANCHE RELEASE CONDITIONALITIES DESCRIPTION Second Tranche. The Borrower has taken the following actions: * Actual expenditures under the 1990 education budget have been of at least FG 2,800 for teaching materials for each primary pupil, and FG 210,000 for operating expenditures for each administrative staff, and the proportion of the 1991 education recurrent budget allocated to primary education is at least 34% and to materials and operating expenditures is at least 17%; * Allocations in the 1991 education budget have been made at a level sufficient to match locally generated primary classroom construction funds, consistent with the objective of increased enrollments; * The implementation calendar for primary school construction in 1992 has been updated; * A sector-wide program has been prepared in respect of staff redeployment, recruitment and training, and a personnel management strategy has been prepared to increase from 13% to 20% in 1992 the proportion of rural primary classes operating with multigrade teaching; and * Entrance requirements for primary teacher trainees have been revised to allow training of holders of lower secondary certificates. Third Tranche. The Borrower has taken the following actions: * Actual expenditures under the 1991 education budget have been at least FG 2,800 for teaching materials for each primary pupil, and FG 210,000 for operating expenditures for each administrative staff, actual expenditures under the 1991 education recurrent budget have been of at least 34% for primary education, and 17% for materials and operating expenditures, and recurrent budget allocations for 1992 have been increased to 35% for primary education, and 18% for materials and operating expenditures; * Allocations in the 1992 education budget have been made at a level sufficient to match locally generated primary classroom construction funds, consistent with the objective of increased enrollments; * The implementation calendar for primary school construction in 1993 has been updated; * A sector-wide program of staff redeployment, recruitment and training, and a personnel management strategy to increase from 20% to 27% in 1993 the proportion of rural primary classes operating with multigrade teaching has been prepared; and * A plan to continue the operations of the education sector management committee beyond the period of the Program has been prepared with a view to consolidating the sector organizational and managerial improvements.   1 4- - -- -- -- --------, > 1 UI E TO KedQoqsg EDUCATION SECTOR ADJUSTMENT CREDIT To X,me Kudr GUI[NEA- .D- ~0gossolo B I SSA U t0 MI 2 ~TBmk -12 *.(-oBmk ( 2.5 12~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ - GaouolE DV&0 *Koubia Tougu6 '