Tunisia - Education and Training Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 16574 IMPLEMENTATION COMPLETION REPORT REPUBLIC OF TUNISIA EDUCATION AND TRAINING PROJECT (LOAN No. 3054-TUN) 20 May 1997 Human Development Group Middle East & North Africa Region This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. CURRENCY EQUIVALENTS (as of 30 April 1997) Currency Unit = Tunisian Dinar (TD) 1.00 TD US$0.92 US$1.00 1.09 TD SDR 1.00 = US$1.36 US$1.00 SDR 0.74 WEIGHTS AND MEASURES Metric System ABBREVIATIONS AND ACRONYMS ATFP - Agence Tunisienne de la Formation P'rofessionnelle or Tunisian Agency for Vocational Training ATE - Agence Tunisienne de I'Emplot or Tunisian Agency for Employment CENAFFIF - Centre de Formation des Formateurs et d'Ing(nierie de la Formation or Training Center for Trainers and Training Engineering CNFCPP - Centre National de Formation Continue et de Promotion Professionnelle CNM - Centre National de Maintenance or National Maintenance Center CRIP - Centre de Ressources et de I'Ingierie Fedagogique or Pedagogic Engineering and Resource Center CS/CSF - Centres sectoriels or sectoral training centers DET - Direction des Equipements et Travaux or Department of Goods and Works DPC - Direction de Projets de Centres or Department of Sector Centers EQT - Ecole de Qualifications Techniques or Technical Qualification School FIAP - Fonds d'insertion et d'Adaptation Professionaelle or Fund for Insertion and Professional Adaptation ITM - Initiation aux Travaux Manuels or Initiation to Manual Work MANFORME - Mise a Niveau de la Formation et de i'Eniplot or Modernization Program for Training and Employment MEd - Ministere de /'Education or Ministry of Education MFPE - Ministere de la Formation Professionnelle et de i'Emploi or the Ministry of Vocational Training and Employment OFPE - Office de la Formation Profe?ssionnelle et de /'7,mploi or Office of Vocational Training and Employment TEVT - Technical education and vocational training TFP - Taxe de F'ormation Professionnelle or Vocational Training Tax Vice President Mr. Kemal Derviy Director : Mr. Daniel Ritchie Sector Director Mr. Jacques Baudouy Responsible Staff Ms. Meskerem Mulatu FISCAL YEAR 1 January - 31 December FOR OFFICIAL USE ONLY IMPLEMENTATION COMPLETION REPORT REPUBLIC OF TUNISIA EDUCATION AND TRAINING PROJECT (LOAN 3054-TUN) Preface This is the Implementation Completion Report (ICR) for the Education and Training Project in Tunisia, for which Loan 3054-TUN in the amount of US$95.0 million was approved on 6 April 1989 and made effective on 30 October 1989. The loan was closed on 30 September 1996, as compared with the original closing date of 31 March 1995. Final disbursement took place on 12 February 1997; although we anticipate a balance of US$1.9 million will be canceled, we are still awaiting explanatory documents or a refund from Government to fully justify the special account. The ICR was prepared by Ms. Meskerem Mulatu, MNSHD of the Middle East and North Africa Region with support from Ms. Christine Wong, Procurement Assistant. An early background document was prepared by Mr. Georges Solaux, Education Specialist (consultant). This report was reviewed by Jacques Baudouy, Manager, MNSHD; David Steel, Acting Manager, MNSHD; Marlaine Lockheed, Education Sector Leader, MNSHD; and Jaffar Bentchikou, Acting Project Adviser, MNI. Preparation of this ICR was discussed during the Bank's completion mission of 9-20 March 1997. It is based on the Staff Appraisal Report, the Loan Agreement, supervision reports and other material in the project file. The Borrower contributed to the preparation of the ICR by commenting extensively on the draft version (in the case of the Ministry of Vocational Education and Employment a separate document was submitted), and by endorsing the contents of this joint report. This document hag a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. IMPLEMENTATION COMPLETION REPORT REPUBLIC OF TUNISIA EDUCATION AND TRAINING PROJECT (LOAN No. 3054-TUN) TABLE OF CONTENTS Preface Evaluation Sum m ary........................................................................................... PART 1: PROJECT IMPLEMENTATION ASSESSMENT A . Statem ent of objectives ...............................................1......................... B . A chievem ent of objectives .......................................... ......................... C . M ajor factors affecting the project .............................. ......................... D . P roject su stainab ility .................................................. ......................... 3 E . Perform ance of m ajor actors ................................................................ 3 F . A ssessm ent of outcom e ....................................................................... 5 G . F utu re op eration ........................................................ ......................... 7 H . K ey lessons learned ............................................................................. 7 PART II: ANNEXES Annex 1: Quantified and non-quantified project targets and actuals Annex 2: Sectoral issues in Education Annex 3: Education budget Annex 4: Sectoral issues in Training PART III: APPENDICES AND STATISTICAL TABLES Appendix 1: Mission aide-m6moire Table 1: Summary of assessments Table 2: Related bank projects Table 3: Project timetable Table 4: Loan disbursements Table 5: Key indicators for project implementation Table 6: Key indicators for project operation Table 7: Studies included in project Table 8: Project costs Table 9: Status of legal covenants Table 10: Compliance with operational manual statements Table 11: Bank resources: staff inputs Table 12: Bank resources: missions Map No. 24726R EDUCATION AND TRAINING PROJECT (Loan No. 3054-TUN) REPUBLIC OF TUNISIA Evaluation Summary 1. Introduction. Tunisia has had a strong and continuous commitment to the development of its human capital base, and the Bank has been one of its earliest international partners in that endeavor. This project is the fifth one financed by the Bank; the previous four projects focused on expanding access to, and improving relevance of, primary and secondary schools, and supported the expansion of training to provide employment opportunities for school leavers and skill upgrading for those in the workforce. Yet, in 1988, access to nine years of education was not available to all, and improvements were needed in the quality of education programs and in the efficiency of educawnal administration and management. In vocational training and technical education, responsibilities were dispersed among various institutions, there was a weak relationship between training and employment, and resources were limited for improvements in the quality of training programs. In order to address these issues, and to support the economic adjustment program it launched in the mid-80s, the Government developed far-reaching reforms in the education and training sectors and sought Bank assistance in implementing them through this project. 2. Project Objectives. The major purpose was to support the first phase of the Government's education and training sector reforms. In education, the project objectives were to: (a) make education provision more consistent with the country's medium-term development needs, and (b) provide education in a more equitable and cost-effective manner. In training, the objectives were to: (a) promote pre- and in- service training in collaboration with companies in the productive sectors, and (b) mobilize additional resources for training. 3. To fulfill its objectives in education, the project financed the following components: (a) rehabilitation of existing primary and secondary schools; (b) construction of school canteens; (c) construction of new schools corresponding to the second cycle of basic education (7-9); (d) equipping of the National Maintenance Center; provision of vehicles for regional administrations; and providing micro- computers to schools on a pilot basis; (e) distribution of books and education materials; (f) institutional development; (g) curriculum design and development; (h) textbook development and publishing; (i) teacher training; (j) measurement and evaluation; (k) educational management; (1) maintenance of buildings; (in) studies to evaluate the reform program; and (n) in-service training for teachers. 4. To fulfill the objectives in training, the project components were: (a) improvement in the efficiency of the vocational training administration; (b) strengthening of links with productive sectors; (c) development of apprenticeship and dual training (alternance); (d) improvements in the quality and efficiency/effectiveness of training programs; and (e) development of an information system on job insertion rate of graduates. 5. Given the ongoing economic adjustment at the time of project appraisal, and the attendant budget constraints, as well as the pressing needs of the education and training sectors, there is sufficient rationale for the selection of these objectives. Although the objectives were general in nature, there were specific activities identified, particularly in education, which are evaluated in detail in the annex tables and matrices. 6. Implementation Experience and Results. Achievement of objectives: The project objectives were satisfactorily attained. In education, activities aimed at increasing the numbers of school places, improving the availability of equipment, materials and books, enhancing the quality of curricula and teacher training, and strengthening the management and efficiency of the sector were completed. In training, although implementation experience was not consistently smooth, the anticipated improvements in the efficiency of administration, in the availability of training alternatives, and in the relationship with productive sectors were achieved. Costs, financing and timetables: Approximately 98 percent of the loan was disbursed, for an equivalent of US$93.0 million. In education, disbursements were generally as planned, and 75 percent of the construction category was disbursed halfway through the project. In training, there were substantial delays, eventually leading to two extensions of the closing date and the eventual cancellation of US$1.9 million. The financing arrangements were highly satisfactory, and counterpart funds (for local expenses) were often disbursed before loan funds were accessed. 7. Sustainability: It is highly probable that the project achievements will be maintained in the future. The project emerged from the Government's own reform program, and its activities have been incorporated into the normal functioning of each ministry. The structural changes proposed and executed would have encountered significant resistance had they not been firmly anchored in the reform actions already identified by the Government. Subsequent Bank operations have emerged from both the education and training components, profiting from the foundations established, and the lessons learned, in the implementation of this project. 8. Key factors affecting achievement: In both education and training, the most important factor was the implementation of this project during a transition period in Government's policy-making and administrative reform process. Although the reforms disrupted the implementation rhythm at key points, ultimately they resulted in positive outcomes in the organization, management and functioning of both education and training. Moreover, in education, an important problem was the artificially low budget for school construction set by the Ministry. As a result, the budgets allocated to certain schools had to be reduced. Second, there were substantial delays in the launching of training and technical assistance activities during the first two years of the project. The reduction of training and TA activities, and the reallocation of funds, enabled the Government to finance the additional expenses due to the budget under- estimates in construction. However, this meant expected "software" activities could not take place as planned. Given the importance of such inputs to the long-term goals of education, and given the prevalence of this in other sectors, high-level Bank missions should take up this issue at the highest levels of Government. An additional option would be to tie capital expenditures to the fulfillment of specific requirements that enhance quality. In training, the Government remained reluctant to use loan funds for external technical assistance; consequently, the lack of local expertise in specialized sub-sectors (particularly in plastics and welding, heating and refrigeration systems) further exacerbated construction delays and resulted in cost overruns. 9. Performance: The performance of education component was highly satisfactory. Government staff were motivated, well-informed, and were conversant with Bank procedures. There were few problems with disbursement, procurement or with the completion of legal covenants. The performance of the training component was satisfactory. Changes in organizational structure, in staffing, and in approach as well as lack of familiarity with the Bank's procedures resulted in several delays in implementation. Ultimately, however, a more coherent organization of the sector has been created, and subsequent projects (including one financed by the Bank) are reaping the benefits. Bank performance in both components were satisfactory: staffing of missions was even-handed, and Bank task managers worked closely with counterparts to handle problems that arose. There were several shifts in project management and in disbursement which led to some discontinuity; in addition, in preparation and in supervision, Bank staff ii paid significantly more attention to the education component, which commanded 84 percent of the total loan amount. 10. Overall project outcome is satisfactory: the project achieved most of its objectives and is highly likely to achieve substantial development results. There were only a few short-comings, most of which were sufficiently mitigated by project end. 11. Summary of Findings, Future Operations, and Key Lessons Learned. The following were the lessons learned during the implementation of this project: (a) In Bank-Government policy dialogue, it is important to build consensus during project preparation regarding the major objectives, and to maintain continuity in the team composition on both sides. Project targets should remain realistic within the political as well as sectoral realities in the country. (b) In the implementation of civil works, strengthening the capacity within the Ministry to shepherd appropriate documents through the many Government and World Bank processing steps, developing good cost estimates of buildings by region, and maintaining adequate architectural and engineering capacity at the regional level for on-site supervision were crucial. (c) In the implementation of training and technical assistance, Government preferred not to use loan funds. It will become increasingly important, therefore, to assist Government in leveraging grant funds for software inputs, and to build commitment at the highest levels of Government for the inclusion of these inputs in Banks loans when grant funds are not available. (d) Finally, in project management, training for project personnel in the areas of strategic planning, budgeting, and supervision should be an integral part of every project. 12. Future operations: Two operations emerged from this project: the Secondary Education Project (FY95) supports the expansion and improvements in the quality of upper basic and secondary schools. The Second Employment and Training Project (FY96) aims to improve the quality of vocational training and its links with the market. In addition, the Government requested Bank assistance in studying the major sectoral issues in education, and the Post-Basic Education Study started mid-way in the implementation of the project. This study provided important data that informed decisions made in the 8th Plan, in the remaining years of project, and in the design of the above-mentioned subsequent operations. iii Implementation Completion Report Republic of Tunisia Education and Training Project (Loan 3054-TUN) A. Statement of Objectives 1. The project was appraised in December 1988 and was presented to the Board of Directors of the World Bank on 6 April 1989. Its major objective was to support the first implementation phase of the Government's education and training sector reforms. The project was to achieve its objectives through the implementation of activities in these two sectors. In education, the project had dual objectives: (a) to make education provision more consistent with the country's medium-term development needs, and (b) to provide education in a more equitable and cost-effective manner. In training, the objectives were: (a) to promote pre- and in-service training in collaboration with companies in the productive sectors, and (b) to mobilize additional resources for training. 2. In education, the objectives were clear and realistic, in line with the reform targets of Government. In training, the objectives were general in nature, reflecting the ambiguity prevalent in the sector. Whereas the education objectives were accompanied by detailed quantitative and policy indicators, those for training were more difficult to measure precisely (see tables and matrices in Annex 1). B. Achievement of Objectives 3. Project objectives were substantially achieved, in large part because they were articulated by the Government in the context of its own reform agendas. The project design was appropriate given the objectives set for the project. Matrices in Annex 1 to this report give details regarding quantified and non-quantified targets, and the results at the end of the project. Briefly, in education, almost all of the education objectives were achieved; project activities to increase school places; improve availability of equipment and learning materials; enhance the quality of curricula and teacher training, and improve sector management and efficiency were accomplished. The few quantitative targets that were not completely met reflected a defining characteristic of the sector as a whole: results were almost always in the right direction, but the pace was not always as fast as anticipated. In training, the results were satisfactory when judged against the general targets set, and the project outcomes were an improvement over the disorganized system in place prior to the reforms. C. Major Factors Affecting the Project Factors generally subject to government control 4. This project was implemented during a transition period in the government's policy-making and administrative reform process. Important policy decisions and administrative shifts were made during the implementation period; although these often disrupted the implementation rhythm of the project, ultimately they made both the education and training sectors more coherent, putting into place changes that have already benefited subsequent operations. 5. In education, the project was appraised at the time the education reforms were being discussed nationally. The first implementation steps of the Education Reform began in 1989 after project effectiveness, and the 8th Development Plan as well as the basic education reforms it initiated were put into place in 1992/93, halfway through project implementation. In training, the Ministry of Vocational Training and Employment (Ministre de la Formation Professionnelle et de 1'Emploi or MFPE) was created in March 1990 as the main locus of TEVT activities. This meant that a more comprehensive strategy could be defined for the training sector; however, this change coincided with the most significant period in the implementation of the project. Although there was broad agreement at the time of project preparation that having training activities in several major ministries was hampering efforts to coordinate sectoral policy, the transition periods and the inevitable confusion that surrounds them created delays. However, these administrative changes, while unwieldy, contributed to the creation of a structure within which the Government could implement a comprehensive training sector strategy. Factors generally subject to implementing agency control Education 6. An important problem in education was the artificially low budget for school construction that had been set by the Ministry. As a result, the number of classrooms or administrative rooms in certain schools had to be limited to remain within budget. This problem was acknowledged by the Government, and subsequent projects have had more realistic budgets. 7. The delay in training and technical assistance activities in the first two years of the project meant almost all of the activities had substantial delays. Consequently, funds allocated for these qualitative aspects were reduced, and the savings were reallocated to the civil works category (in part because of the budget under-estimates of the latter, as mentioned earlier). The importance of the software aspects of the project were reiterated at the time of the mid-term review, a revised schedule for the remaining tasks was drawn up, and most of the planned training, technical assistance and studies were carried out. Training 8. The MFPE was reluctant to use loan funds for external technical assistance. MFPE resisted hiring relatively expensive international experts to provide training and technical assistance. Instead, the Ministry preferred to use bilateral grant funds for those activities it deemed to require outside expertise. It was not always possible to synchronize the timing, objectives, scope and financing anticipated under the project with those of bilateral donors. In addition, lack of local capacity in specialized areas (such as heating, air-conditioning and refrigeration, and welding) meant that even when external firms were hired, supervision could not be adequately carried out by the Government staff at central or at regional levels. 9. Due to the delays encountered in the implementation of the project, some elements to be financed for the sector centers had to be postponed or canceled. These included the technical and 2 sectoral documentation centers, vehicles for transporting trainees to the enterprises for on-site internships and for visits; the classrooms for general training, and the sport and cultural activity areas. 10. Although the project was to have been implemented in five years, the construction and equipping of the last two training centers required two extensions, adding 18 extra months to the closing date. At present, disbursement records indicate an overall undisbursed amount of US$1.9 million; once final account reconciliations are received from both ministries, a more exact figure will be furnished; the current estimate is that US$1.9 million will be canceled. Factors subject to both implementing agency and Bank control 11. Disbursements presented several problems, primary among them the confusion between the two sets of categories (one for education, one for training) in the withdrawal of funds. This was due to the number of actors: the Banque Centrale de Tunisie (Central Bank of Tunisia) used three or four numbered systems (not always in sequence), leading to considerable complications regarding which withdrawal application was being processed; the MFPE requested withdrawals from categories and of amounts which were inappropriate, resulting in significant differences in the accounts documentation maintaiped by the MFPE and the Ministry of Education and by the World Bank. There were several changes in disbursement officers and analysts from the Bank, leading to discontinuity at times. In addition, procurement actions in training were conducted in a manner that, though within the letter of the law, showed a willingness on the part of the Borrower to take shortcuts, indicating a lack of familiarity with Bank procedures. D. Project Sustainability 12. It is highly likely that project achievements will be maintained in the future. The project emerged from the Government's own reform program, and its activities have been incorporated into the normal functioning of each ministry. The structural changes proposed and executed would have encountered significant resistance had they not been firmly anchored in the reform actions already identified by the Government. With respect to policy actions, major actors, implementing agencies and final decision makers, there is little in this project that is not of the Government. This is one of the great successes of this project, due primarily to a capable counterpart with a vision of the direction to be taken in both education and training and the will to get there. E. Performance of Major Actors Bank's performance in education 13. Overall, the performance of the Bank was satisfactory. Bank staff were responsive to the needs and demands of the education sector. Throughout the identification, preparation and appraisal stages of the project, a good skill mix was assured between staff members and consultants involved. The project design was not too complex, and at the time having two implementing agencies under one project made sense, given the preponderance of overlapping responsibilities in the technical education and vocational training areas. Few risks arose which had not been identified at the time of project design. When procurement issues arose (i.e. when local shopping estimates were too low and local 3 competitive bidding expectations at project preparation seemed too optimistic), the Bank worked with the Government to make the necessary amendments. In those cases where task managers changed, there were consultants who had worked on the project who were able to provide continuity and institutional memory as needed. Work with the Ministry of Education was collaborative in nature, and the close contacts established between the Bank and that Ministry helped in the smooth implementation of the component. Seeking to take stock of the changing demands of the education sector, the Government sought the Bank's technical expertise mid-way through the project implementation period (1993), and a quick but well-regarded piece of sector work was initiated and completed in record time (the Post-Basic Education Study, issue as a green cover report in October 1994). Borrower's performance in education 14. The borrower's performance has been highly satisfactory. The staff were well motivated and had had previous experience with the implementation of Bank projects. They were able to process documents through the various Government and Bank procedures with a minimum of difficulty and delay. The routine reporting was generally on time, and audit reports were always unqualified. Project staff did not change during the majority of the project period; therefore, there was excellent continuity with regard to project objectives and implementation arrangements. Application of both Government and Bank rules was to the letter, and project management was decisive and thorough. Bank's performance in training 15. Overall, the Bank's performance was satisfactory. At the time of project preparation, the Bank worked closely with counterparts in the sector to identify the interventions which would best accomplish the objectives as elaborated mutually with the Government. During the first two years, when implementation progress was slow, the Bank made numerous attempts to help rectify the situation. During the mid-term review, an extensive review of the sector was done and recommendations were made to put the program back on track. Changes in task managers and disbursement staff seem to have been more disruptive to the implementation of this component. With the approaching closing of the project, and the preparation of other operations (the first of which was the FIAP project), it became clear that Bank supervision mission concentrated on the completion of the civil works; little effort was made to enforce the implementation of agreed-on management improvements. Borrower's performance in training 16. The Borrower's performance in training was satisfactory. Changes in organizational structure, in staffing, and in approach resulted in several delays in implementation, as mentioned above. The MFPE showed its willingness to seek answers continuously until it arrived at the current structure, which appears to have resolved the majority of the reasons behind these delays. The Government showed its commitment to the attainment of the project objectives by allocating additional budget resources for the completion of the remaining two centers. Procurement and disbursement difficulties, encountered at the beginning of the project, were resolved, and procedures have been put into place to ensure that these problems do not arise again. A committed and competent team is in charge of projects, and the new Second Training and Employment Project is testament to the confidence that the Bank and other donors have in the ability of the sector to implement larger and more complex operations. Audits were always unqualified. Progress reports were not always provided on time, and during the critical analysis conducted by the ATFP during the last few months of implementation it 4 became clear that the information provided in previous reports was often incomplete and/or incorrect. This was corrected in the last progress report provided to the Bank mission. F. Assessment of Outcome 17. Quantitative targets, actual outcomes and the policy measures of the project, by component, are provided in Annex 1. In education, quantitative targets were met or surpassed, and activities that involved construction, rehabilitation or equipment of facilities disbursed quickly and were 75 percent completed more than two years p.rior to project closing. This reflects the emphasis placed by the Ministry of Education (Minist&re de 'Education or MEd) on "hardware" inputs over "software" ones as has been pointed out in numerous other documents. This appears to be a problem in several other sectors. Although there may be sector-specific solutions, high-level Bank missions (e.g. high-level planning missions) should take up this issue at the highest levels of Government. In training, the project objective had been to finance centers which fulfilled the above-mentioned criteria. By mid-term review, six had fulfilled those criteria, and by project completion an additional two centers could be financed within the time and budget constraints. Although tracer studies have not yet been done to assess long-term employment prospects, graduates from the training centers have been found to be in high demand among the enterprises, and applications to these centers outnumber the places available. Education 18. To fulfill its objectives in education (see para. 1 above), the project contained 14 components, all of which were important but with varying degrees of complexity (ranging from "institutional development" to "provision of 23 vehicles"). This component is rated highly satisfactory overall. The targets were substantially met or exceeded. Accelerating construction and rehabilitation of school facilities allowed increased access to lower secondary. Underserved areas, particularly areas with relatively low female enrollment, were given priority under the project by the MEd. Thus, the objective of improving equity was substantially met (see Annex 2 tables and matrices). MEd took the necessary steps to improve coordination of technical education and vocational training. Technical streams formerly in secondary education were phased out, and vocational training has been transferred to the newly created ministry charged with that function. Improvements in the quality of education were implemented, but were not always timely due to delays in the implementation of TA and training activities (the matrix in Annex I provides details). Specifically, activities for distributing books and education materials were successfully carried out; teacher training was expanded and improved, and training was managed by one sole unit within MEd; new academic programs were developed for grades 1-9; and curriculum development and textbook preparation processes were institutionalized. Finally, although it will not be completed until June 1998, the 9-year basic education cycle has been successfully introduced. Because the introduction did not take place until 1990/91, the first basic education graduates will not complete grade 9 until September 1998. Therefore, the project requirement that the rate of promotion of basic school studentsl to grade 10 be reduced from 70 percent to 50 percent may or may not be met. Given the fact that the promotion rate has grown steadily over the last decade to be near 75 percent at this time, it is unlikely that promotion rates will fall so dramatically in two years' time. The policy requirement to restrict access to secondary was rational at the time: the budget was already stretched at all levels, and there was little room for I.e. those who entered grade 1 when the reforms were introduced, and who will enter grade 10 in September 1998. 5 expansion of Government expenditures to accommodate the growth in enrollment in upper-basic schools. 19. Though cost-effectiveness was a major objective of the project, details regarding which interventions to assess, and the indicators with which it should be done, were not defined at the time of project appraisal. Therefore, further conclusions cannot be drawn regarding the cost-effectiveness of specific interventions. However, there were other noteworthy budgetary issues not specifically included in the project. Although the share of the total recurrent budget allocated to primary and secondary education was maintained or rose slightly over the period 1989 - 1995, unit recurrent costs fell in real terms in secondary from a high in 1992, and unit non-salary unit costs fell in real terms in both primary and secondary after peaking in 1990. (see Annex 3). Therefore, recurrent cost increases since 1990 were due primarily to increases in the salary bill and not to higher spending on quality- enhancing inputs. Training 20. To fulfill the objective of the training component (see para. I above), the project activities were : (a) improvement in the efficiency of the administration of vocational training; (b) strengthening of links with productive sectors; (c) development of apprenticeship and dual training (alternance); (d) improvements in the quality and efficiency/effectiveness of training programs; and (e) development of an information system on job insertion rate of graduates. 21. This component is rated satisfactory overall. The objective of promoting pre- and in-service training in collaboration with enterprises and professional associations has been substantially met. By the end of the project, eight sectoral training centers had been created (either through new construction or through restructuring existing facilities). Each center represented a productive sector selected on the basis of the following criteria: training agreement with industry associations; economic relevance, pedagogic organization, feasibility evidence, transfer of technology requirement, and financial criteria. The sectoral training centers (centres sectoriels or CS) increased both in- and pre-service training capacity in the selected sectors, played an important role in mobilizing the interest of potential employers in the training programs and in the graduates, and helped elevate the quality of the graduates (generally from skilled workers to technicians) resulting in an increase in both employability and salary possibilities (see quantified achievements in Annex 1). 22. The mobilization of additional training resources from enterprises and professional associations has had some positive results. Insufficient attention had been paid at the start of the project to the process for involving these partners financially. The reform of the vocational training tax (la Taxe de Formation Professionnelle or TFP) in 1988 involved a reduction from 2 percent to 1 percent of salaries for the manufacturing sector, with the idea that individual firms would be more motivated to finance training. By the end of 1993, the reform measure that would reimburse firms for their training expenditure had been put into place, and the tax list schedule was revised: these measures were to provide important incentives to enterprises to train their employees. It is unclear, however, what the impact of these policy changes has been on the participation of the enterprises in the financing of training within the sectoral centers; moreover, there is little evidence that the amount of training in enterprises has grown directly as a result of these measures. 23. Mobilizing additional resources for vocational training from outside the country has been quite successful; by the completion of this project, the MFPE had generated considerable interest on the part 6 of bilateral partners, who were able to finance a significantly larger program under the Second Employment and Training Project (effective this fiscal year -- see staff appraisal report # 15515-TUN). 24. The main unresolved issue is the division of responsibilities between (and the identification of the target student population for) the education and training systems. With the growing emphases on involving enterprises in training design and on responding to labor market demands, the training sector no longer accepts those who have failed out of general education. The Ecoles de Qualifications Techniques or EQT -- Technical Qualification Schools), created in 1992 after the elimination of the professional education secondary stream, enrolled up to 18,000 students who had dropped out of general education in 1995/96. In theory, the EQTs provide pre-apprenticeship training that prepares their students either to join apprenticeship programs or to enter the vocational education institutions. However, these EQTs can accept only a fraction of those students who leave the general education system and who seek admittance elsewhere. G. Future Operation 25. As mentioned above, the project was designed within the framework of the Government's reform program. It is being implemented by mainline Government departments; its functions are incorporated into their daily administration. Two Bank operations have emerged from both the education2 and training components, profiting from the foundations established, and the lessons learned, in the implementation of this project. H. Key Lessons Learned Lessons common to both education and training 26. Bank-Government dialogue: the most important lesson learned, and one which the education component illustrated particularly well, is the importance of building consensus between the Government and the Bank regarding the major objectives during project preparation. There had been considerable consensus-building conducted by the Government while identifying the key reform activities. The project, therefore, benefited greatly from the congruence between its objectives and those of the Government and other major stakeholders. There were no fundamental differences in the development objectives, and the only problems were logistical or administrative in nature. 27. Implementation of civil works: The capacity within a Ministry to shepherd the appropriate documents through the many, complex Government and World Bank procurement and disbursement procedures means that project processing can be handled efficiently. The existence of a well-trained staff within the MEd who could handle the processing requirements of the project contributed a great deal to the timely completion of this project; the lack of such capacity at the ATFP hindered project implementation under the training component. 28. Implementation of training and technical assistance: These activities were only partially executed and with significant delays. First priority is given in both education and training to civil works. External training and foreign technical assistance, when the need for them is acknowledged by 2 The Secondary Education and the Second Employment and Training Projects. 7 the Borrower, are preferably financed through bilateral arrangements. Therefore, it is important to leverage, to the extent possible, additional cofinancing in the form of grants to complement Bank loans. This arrangement will only succeed if there is a strategic plan agreed upon by all donors and the Government, to be updated regularly, to ensure that training and technical assistance activities are adequately financed (irrespective of who provides the financing), that they are appropriately sequenced, and that they remain relevant. 29. Implementation during transitions: Bank projects, especially those appraised during a transition period, should set realistic targets. At the time of project effectiveness, the training sector was still trying to define its role, particularly vis-4-vis the education sector. Many of the planned activities, though appropriate in terms of their content, would have benefited from closer attention to the process for implementing them within a transitional environment. This may have led to more emphasis on project personnel training, and on the involvement of more stakeholders (such as the enterprises) in the design as well as in the supervision of the project. 30. Measures of success: Projects should identify indicators and set baseline values to enable future assessments of whether the project achieved its intended objectives. While the policy matrix provided a wealth of such indicators for education, they were not as well defined in training. Even in education, the objective of improving cost-effectiveness was not accompanied by indicators to be used. It is important to note, however, that the Bank did not require that project impact and process indicators be included in its projects in 1988. Lessons in Education 31. Education quality: The policy requirement to restrict access to secondary was rational at the time, as mentioned above. To reserve budget resources for expansion of access to upper-basic grades and to protect expenditures on quality inputs (teacher training, textbooks, etc.), the project recommended limiting the rate of promotion. The Government's solution was to expand upper-basic schools but to also continue the expansion of grade 10 and beyond, no doubt due to heavy sectoral and political pressures. This has, however, squeezed out qualitative inputs to both basic and secondary education (see non-salary recurrent unit costs, Annex 3). Given the importance of such inputs to the long-term goals of education, an important lesson would be to secure high-level Government commitment to their inclusion and, if necessary, to tie capital expenditures to the fulfillment of specific requirements that enhance education quality. 32. Civil works: The project would have profited from the existence of good building cost estimates by region. At the time of project preparation, the apparent lack of such information led to problems of under-estimation, as discussed above. That has since been resolved, and future projects will benefit from this lesson (as the Secondary Education Project already has done). The existence of good architectural and engineering capacity at the regional level, and the ability of regional teams to review and clear plans for construction and to supervise works, would have helped avoid the budget under-estimates. 33. Institutional changes and sustainability: Close collaboration between MEd and the Bank ensured that the recommended actions were actually carried out in a timely fashion. The structural changes suggested in the policy matrix would have encountered significant resistance had they not been anchored in reform actions already identified by the Government. In addition, the director of the project was also the Director-General of all financial, civil works, and equipment matters; as a result, his participation ensured that all project activities were integrated seamlessly into the functions of the 8 Ministry. The Bank's and the Government's selection criteria for consultants are well-understood by Ministry staff. In cases where the studies resulted in recommendations and actions that were feasible within the financial, political and sectoral priorities of the Ministry, the Government moved ahead with those recommendations (see Statistical Table 7) and disseminated those results in seminars with the appropriate stakeholders. Therefore, once the technical assistance bids were launched by the Ministry, the appropriate steps were taken to institutionalize the results. Lessons in Training 34. Government-Bank dialogue: Past experience shows that implementation proceeds most smoothly in those projects where a core group of the project teams on both sides remain throughout the implementation period. The Government counterpart at the time of project preparation was the Ministry of Social Affairs; this soon changed to the MFPE and, with the enactment of the institutional reform, this included four agencies within that ministry. There were at least four task managers on the Bank's side as well. Because of these changes, at times the continuity in the policy dialogue was lost. Therefore, given that such shifts cannot always be avoided, the Bank and its Government counterparts should strive to raise the awareness of all major stakeholders regarding project objectives; this would increase the likelihood that project goals are not derailed due to changes within specific organizations. 35. Project management: It is important to note that, during project preparation and implementation, neither the Bank nor the Government had anticipated the need for: (a) training of personnel in project management; (b) the discussion of supervision processes, including modalities for evaluation as well as performance indicators for the project; (c) additional resources and means for a project unit (unit de suivi) to continue to play a surveillance role after the dissolution of the Pedagogic Engineering and Resource Center (Centre de Ressources et de 17ngnierie Pdagogique or CRIP); and (d) detailed implementation planning for those projects where far-reaching, structural changes are expected. These should form an integral part of any project preparation. Given the turnover of staff, the regular training of project staff in the Bank's procurement and disbursement procedures could have eliminated a number of implementation problems. 36. Civil works and equipment: It is important to manage with great care the overlap between the conception, execution and the supervision of projects. As problems arose with the construction and equipping of the training centers, there was little capacity on-site to recognize and resolve them early in the process. The supervision and execution of work was to be managed from the central administration, but sound mechanisms for on-site supervision and tracking progress were not developed. Thus, problems that would have been easily resolved at the early stages (such as design flaws in buildings) were allowed to proceed unchecked, resulting in costly remedial measures later in the process. 37. Partnership innovations: The use of partnership contracts with the relevant sector enterprises (conventions) as well as the constitution of a Conseil consultatif (advisory group) for each center enabled rmor- consistent contact between the centers and the ultimate employers of their graduates. It also enabled Lne enterprises to have input at the conception stage of each training program to ensure that the students were receiving relevant training. This process is still in the early stages, and the roles of the Conseil consultatif have not yet been adequately internalized by all of the concerned parties. An important development in the future would be a more systematic financial involvement of the partners in the functioning of the centers. 9 Annex 1 Page 1 of 8 Annex 1: Quantified and Non-Quantified Project Targets and Actuals Table A1.1: Reform Targets and Actuals Actual REFORM PROGRAM TARGETS ACTUAL FIGURES Primary Education 1988/89 1989/90 1990/91 1991/92 1992/93 1993/94 1989/90 1990/91 1991/92 1992/93 1993/94 Total enrollment 1,326,000 1,355,000 1,377,000 1,399,000 1,416,000 1,432,000 1,369,476 1,398,119 1,417,803 1,432,112 1,467,411 Students per class 30.5 30.5 30.5 30.5 30.5 30.5 30.5 30.5 30.3 30.6 31.2 Student-classes 43,466 44,414 45,129 45,848 46,381 46,874 44,911 45,790 46,811 46,872 46,995 Schools with lunch 1,705 1,720 1,740 1,760 1,780 1,800 1,750 1,805 2,057 2,082 1,927 services Canteens 200.0 250.0 550.0 850.0 1,150 1,450 Dropout rate in Grade 5 8.7% 8.5% 8.0% 7.5% 7.0% 6.5% 8.3% 9.0% 8.2% 5.9% 5.0% Dropout rate in Grade 6 21.1% 20.0% 20.0% 20.0% 15.0% 15.0% 23.4% 22.2% 17.0% 16.6% 16.7% Net enrollment ratio 85.0% 85.1% 85.2% 85.5% 85.6% 85.8% 87.1% 88.1% 87.7% 88.7% 90.6% Female enrollment as % 45.1% 45.2% 45.3% 45.4% 45.6% 45.7% 45,5% 45.8% 46.0% 46.4% 46.6% of total 1 _ Number of teachers 45,600 46.850 48,000 49,7501 51,400 52,100 46,077 50,280 53,652 54,560 55,720 REFORM TARGEIS VSACTIJALS Primary education (1-6) 1989/90 1990/91 1991/92 1992/93 1993/94 Total enrollment 1.1% 1.5% 1.3% 1.1% 2.5% Students per class 0.0% 0.0% -0.7% 0.3% 2.3% Student-classes 1.1% 1.5% 2.1% 1.1% 0.3% Schools with lunches 1.7% 3.7% 16.9% 17.0% 7.1% Canteens Dropout rate in Grade 5 -2.4% 12.5% 9.3% -15.7% -23.1% Dropout rate in Grade 6 17.0% 11.0% -15.0% 10.7% 11.3% Net enrollment ratio 2.4% 3.4% 2.6% 3.6% 5.6% Female enrollment as % 0.7% 1.1% 1.3% 1.8% 2.0% of total Number of teachers -1.6% 4.8% 7.8% 6.1% 6.9%- Annex 1 Page 2 of 8 REEORM PROGRAM TARGETS ACIAL IGURES 1988/89 1989/90 1990/91 1991/92 1992/93 1993/94 1989/90 1990/91 1991/92 1992/93 1993/94 First cycle of secondary (7-9) Total enrollment, of which... 294,661 299,498 308,126 342,305 364,342 Grades 7, 8, 9 248,000 278,000 312,000 325,000 346,000 381,000 267,385 291,006 308,126 342,305 364,342 Vocational education 43,000 29,000 11,000 0 0 0 27,276 8,492 0 0 0 Students per class (7-9 for 35.4 35.4 35.4 35.4 35.4 35.4 34.6 34.4 34.3 35.5 35.4 actuals) Student-classes, of which 8,487 8,893 9,272 9,301 9,881 10,882 Grades 7, 8, 9 6,987 7,876 8,879 9,301 9,881 10,882 7,731 8,454 8,976 9,655 10,306 Vocational education 1,500 1,017 393 0 0 0 981 333 0 0 0 Boarding students 34,200 36,800 42,000 45,500 51,900 57,200 Passing rate to Grade 10 68.0% 68.0% 68.0% 68.0% 68.0% 68.0% 69.9% 66.7% 70.1% 73.7% 76.6% Female enrollment as % of 44.3% 44.4% 44.5% 44.6% 44.7% 44.8% 44.0% 44.8% 45.9% 46.2% 46.8% total Second cycle of secondary (10-13) - - I Total enrollment, of which 187,817 195,845 209,780 225,078 241,593 Students per class 31.2 30.7 31.4 32.5 33.0 Student-classes 6,015 6,371 6,676 6,931 7,312 Female enrollment as % of 45.4% 46.4% 47.3% 48.8% 49.5% total I First & second cycles of secondary (7-13) Schools 474 510 545 580 615 655 536 576 590 625 665 Boarding facilities 185 188 201 210 227 248 190 197 213 216 230 Teachers 25,800 26,700 27,800 29,150 31,350 34,250 26,356 24,474 25,446 26,097 26,317 Teacher/class ratio 1.8 1.8 1.8 1.8 1.8 1.8 1.6 1.6 1.6 1.6 Non-teaching staff 20,800 21,300 22,000 22,900 24,000 25,000 61,003 66,336 68,043 62,392 Annex 1 Page 3 of 8 Table A1.2: Quantified Targets in Education and Training Component Target Actual EDUCATION Rehabilitation of primary and 1,600 primary secondary schools 330 secondary Construction of school canteens 800 canteens 1990-93: 207, 250, 200, 143 Total 800 1991-93: 200, 300, 341 Equipping of school canteens 800 canteens Total 841 Construction and equipment of 1988-93: 25, 54, 36, 9, 22 upper-basic schools 130 new schools Total 146 Distribution of books and For 129 collges 4.1 million TD education materials secondaires Vehicles 46 23 light vehicles 23 all-terrain vehicles Total 46 vehicles TRAINING Restructuring of existing centers 4 centers 5 centers restructured Construction of new centers 2 centers 3 centers built Training of new staff 113 trained locally at CENAFFIF Refresher trg. for existing staff 143 trained in Tunisia and overseas Additional Trainin2 Results The restructured centers are: * CSF Habillement de Manouba (garments). Considered well-established within the sector, and has excellent reputation with the enterprises. Is running at full capacity. * CSF Textile Bir El Kassaa (textiles: cofinanced by Hans Seidel) * CSFM&anique gnrale de Grombalia (mechanics) * CSF Plasturgie, Outillage et Soudure de Sousse (plastics, tools and welding): The center is not fulfilling all of its functions at this time. Plasturgie (plastics) has not been fully equipped whereas the Soudage (welding) has not benefited from any project activities, resulting in its obsolescence. * CSFEnergtique de Kairouan (utilities): Due in part to the complexities of this center, it encountered the greatest difficulties, particularly with regard to the completion of construction and the equipping of the center. After two extensions to the project closing date, and substantial additional resources from the Tunisian budget, the center opened its door in May 1996. Annex 1 Page 4 of 8 The newly constructed centers are: * CSF Cuir et Chaussures de Migrine (leather and shoes): This center has doubled its numbers after the project was implemented and enjoys an excellent reputation with the professional associations and the employers of its graduates. * CSF Habillement Mohamed Ali 6 Sfa (garments): This center is well-regarded by the enterprises, and has reached full capacity of trainees. * CSF Energtique de Djerba (utilities): As mentioned above in the case of Kairouan, the Djerba center also encountered major difficulties. The center opened in January 1997 after additional funds were provided by the Tunisian budget. A total of 113 new hires received preparatory training at the CENAFFIF, and 143 trainers already in service benefited from refresher courses in Tunisia and overseas (much of the overseas training was paid for by bilateral assistance). Not only were the number of specialties increased (as shown in the table above), but new technologies were introduced in all of the sector centers, of which CAD-CAM (computer-aided design/computer aided manufacturing) concepts were an example. In terms of teaching capacity, the sector went from a capacity to accommodate 994 students with an annual flow of 731 in 1992 (before the first projects became operational), to a capacity of 2,310 with an annual flow of 1,306 students. In terms of improving the qualification of the graduates and in increasing the number of subject areas at their disposal, the following table is illustrative: Table A1.3: Pre- and Post-Project Graduate Qualifications in Training Level of qualification Specialties < CAP CAP BTP BTS Pre-project situation (1992) 3 19 8 0 30 Post-project situation (1996) 0 12 40 1 53 Source: Government, MFPE Rapport de cl6ture, 2/1997: CAP = Certificat d'aptitude professionnelle; BTP = Brevet de technicien professionnel; BTS = Brevet de technicien sup6rieur Annex 1 Page 5 of 8 Table A1.4: Polic Measures and Non-quantified Project Activities: Education and Training Objective Polic Measure Target Actual EDUCATION 1. Restructure education system Phase out specialized grades 7 & 8 Completed September 1988 Accomplished as planned Phase out existing lower secondary Started September 1988; to be Secondaire vocational education cycle completed by June 1991 professionnelle ended in 91/92; Note: Ecoles de qualifications techniques began in 1992/93. Introduce 9-year basic education cycle Scheduled to start Sept. 1989; Passed law on to be completed by Sept. 1995 7/25/91, to be completed 6/98. Eliminate technician streams (grades Orientation towards one single Streams 10-12) and increase enrollments in technical education program by eliminated as technical education (10-13) through June 1993 planned introduction of core program in grades 10-11 followed by 5 streams in 12-13 Integrate technical sciences and Pilot project for several lycees Generalized to humanities within secondary schools under preparation all schools 2. Improve access to basic education; restrict access to secondary Increase promotion rate from grade 6 Promotion rate to increase from Achieved 60% to grade 7 45% to 70% by June 1995 by end 1995, and 64% by 1996 Phase out entrance examinations at Elimination of examination at Exam eliminated 7th grade 6th grade by June 1993 in 1995 (last test was in 1994) Introduce examination for entrance Entrance exam for grade 10 Introducing into secondary introduced in June 1996 exam in 6/98 Reduce rate of promotion from basic Decrease promotion rate from To be verified (grade 9) to secondary (grade 10) 70% to 50% by June 1997 to when first basic maintain constant enrollment school graduates growth in secondary enter 10th - 9/98 Annex 1 Page 6 of 8 3. Improve quality of education Phase out 5-year primary teacher First bac holders recruited in First promotion training at grade 10 and replace it 1989. Recruitment at grade 10 of teachers done with two-year pedagogical training for to end by June 1989. in 1991. baccalaur6at holders Introduce teacher training program Start on an experimental basis Not yet offered to licenciers (Bac + 4) in September 1990 generalized. Develop in-service teacher training Program for basic education to Put into place as program start September 1989. For planned. upper secondary to start Sept. 1990. Develop new programs for grades 1-9 New programs for grades 1-3 to Completed in accordance with new basic start Sept. 1989, with additional education concept grade added each year. Introduction of scientific and technological education pilot started in Sept. 1988 and was generalized Sept. 1993. Update secondary curricula in Sept. 1989 Increase availability of reading books Distribution program to start in Completed and materials in schools September 1990 Develop testing and evaluation system Program to start Sept. 1991 Completed Introduce remedial education methods Introduction of remedial courses Not yet starting with grade 2 in Sept. 89 introduced. 4. Improve efficiency of education administration Institutionalize curriculum Implementation planned for Completed development and textbook preparation 1990. processes Group all teacher training Implementation scheduled for Completed responsibilities in one unit 1990. Unify primary and secondary Completed 1988 Completed administration at regional level Intensify training for school directors Program underway Part of Ministry function Intensify pedagogical inspection at Program underway Part of Ministry basic and secondary education function Create High Level Committee on Completed in 1988 Completed Education, Higher Education and Research Annex 1 Page 7 of 8 TRAINING Situation in July 1993 By project close 1. Improve efficiency of administration Compose a tri-partite commission to Not yet created in July 1993. Completed (see bring together the MFPE, the training Ch. 2 of Lot centers and the potential employers in d'Orientation de the sector 1993) Reunite all vocational training OFPE was created within the Creation of activities within one entity Ministry of Social Affairs in MFPE played an 1988 to fulfill this objective. It important role in was moved into the newly uniting all voc. created MFPE in 1990, and activities. again split into ATFP/ATE in Further splits 2/1993. created chaos in early years, but now seem to be reaping benefits. Integration of training and In 1993, this had employment services in regions. occurred but another change was envisaged: ATE to have regional reps. (BREs) were created, but CSs would represent ATFP. Strengthen coordination of private and To be put into place as a result Completed public training providers by OFPE of the Loi d'Orientation of 2/93 2. Strengthen links with productive sectors Encourage participation of prof. By decree, both ATE and ATFP Completed association representatives in the have Administrative Councils Advisory Council of the OFPE with members from employers. Put into place contracts (accords Those sectors seeking formal Dual training cadre) for training personnel in qualification (for which centers has been a productive sectors. have been financed) were to success. Success sign an accord with centers to varies with participate in the functioning of respect to the centers, including in the enterprise definition of sector needs and participation in program design. running CSs. Create guidance committees (comitis By decree, trg. centers will have CSs have advis. de parrainage) in each center, to be Advisory Councils (8 members councils. Mgmt. converted into management of which 3 are employer committees do committees (comit6s de gestion). representatives) not yet exist. Encourage professionals to teach Not yet achieved. courses in centers Annex 1 Page 8 of 8 3. Develop apprenticeship and dual training (alternance) Redefine modalities of apprenticeship See Ch. 4 of 1995 and 1996 Cadre Juridique Allow apprentice training at centers Completed Develop dual training with enterprises Accords to be signed with Completed UTICA in 9/93, with sectoral professional associations, and with enterprises 4. Improve quality and efficiency of training programs Revise status of trainers (improve To increase the quality of Work in progress quality of trainers hired) trainers, recruitment to be done at higher level (>=Bac + 4 yrs) Intensify training of trainers and A center for training (Centre de In progress organize internships (stages) with Formation des Formateurs et enterprises for trainers d'Ingnierie P,dagogique or CFFIP) has been created. Develop engineering and research To be done by CFFIP In progress streams Put into place orientation function and FIAP financing is strengthening See FIAP ICR. mechanisms system in place Develop system of information on A surveillance unit to be created Not yet done. insertion Develop certification procedures in Legal obstacles were removed In progress collaboration with employers by the Loi (93). Need to do the certification. 5. Mobilize resources for training Reduce the TFP (taxe de la formation Tax reduced from 2% to 1% in Tax reduced professionnelle) 1989. Study planned in 1993 to from 2% to 1% identify more substantive and law revised changes to allow refunds to those enterp. that do training. Create a fund for promotion of Not likely to occur in the Not completed. qualifications and insertion. foreseeable future Revise legislation for private trg. Law of 93 envisages creation of Public commission to agree on private documents sector role. Ministry is in prepared. charge of the control (regulation) of private establishments. The new legal code (Code Unique des Investissements) provides some advantages to investors who finance training activities. Promote training activities in A center for in-service training Organization enterprises (Centre National de Formation and modalities of Continue et de Promotion CNFCPP Professionnelle or CNFCPP) functions to be has been created to do this. fixed by decree. Annex 2 Page 1 of 6 Annex 2: Sectoral Issues in Education' Education sector background Prior to the Education Reform (Law voted in 1991), the Tunisian education sector had the following structure: a primary cycle of 6 years and a secondary cycle of 7 years (the latter was divided into 3 years of lower secondary and 4 years of upper secondary). After completing 6th grade, students are allocated to either the academic secondary education stream (l'enseignement secondaire long) or the professional education stream (l'enseignementprofessionnel), based on the student's age. L 'enseignement secondaire long comprised two cycles: a joint first cycle of 3 years, and a second cycle of (a) general education for 4 years, leading to the school leaving exam (baccalaurgat); (b) industrial education for 3 years, leading to a technician diploma; or (c) economic education for 3 years, also leading to a technician diploma. L'enseignement secondaire professionnel lasts 3 years. The students with the best grades from this cycle were authorized to go into technical secondary education corresponding to their areas of specialization. Project actions Ojective 1: To makf the provision ofeducation more consistent with the country's medium-term deveopment needs, andto provide education in a more equitabfe andcost-effective manner Among the reform program targets set by the Government, the ones most relevant to the objectives of this project were the following: (a) reduction of enrollments in primary while maintaining or improving net enrollment rates; (b) increase in enrollments in grades 7-9, (c) reduction in dropouts in basic education; (d) reduction in the numbers of teachers in grades 1-6; (e) increase in the number of teachers in grades 7-9; (f) maintaining the share of the recurrent budget for education; and (g) decrease of unit recurrent costs per grade 9 completer2. As Table A2.1 below shows, although the changes were in the direction mandated by the reforms, the pace was not as fast as anticipated. Growth in primary enrollments slowed while absolute numbers of primary students continued to increase. Although dropout and repetition rates fell in all grades 1-6, they did not fall enough to cause a net decline in enrollments, as had been anticipated. Upper basic (7-9) enrollments grew as expected, at almost ten times the rate of enrollment in primary. There All data, unless otherwise noted, come from the Ministry of Education, Dept. of Planning and Statistics. 2 See Annex 1 tables and matrices comparing reform targets and actuals. Annex 2 Page 2 of 6 was no decline in the numbers of teachers in primary as anticipated by the reform; however, the increase in upper basic and secondary teachers was twice that in primary. Table A2.1: Reform Target Comparisons Enrollments Teachers Grade 1-6 7-9 10-13 Grade 1-6 7-9 10-13 1989/90 1369476 267385 187817 1989/90 46077 267385 187817 1995/96 1460101 418262 307664 1995/96 59532 418262 307664 % change 6.6% 56.4% 63.8% % change 29.2% 56.4% 63.8% In addition, other quantitative reform targets were set for basic education and were mostly achieved. The number of students per class grew by 2.3 percent but was maintained at acceptable levels (31.2 as compared with a target of 30.5); the dropout rate in grade 5 showed significant improvements, registering levels 16 percent lower than expected in 1992/93, and 23 percent lower in 1993/94. Although the dropout rate in grade 6 fell from 23.4 percent in 1989/90 to 16.7 percent in 1993/94, it did not reach the target of 15 percent (it reached 15.7 percent in 1995/96). There were two other goals expressed in the project document: making education more equitable and more cost-effective. Equitable education: Over the period 1989-1994, the Government reform program supported the construction and rehabilitation of school facilities, which in turn helped expand access to those previously unable to attend school. The project financed the rehabilitation of 1,600 primary and 330 secondary schools; the construction of 800 and the equipment of 841 school canteens, and the construction and equipping of 146 secondary schools, comprising a majority of the investment program for education. As a result of the Government policy, the following trends were seen in expanding access: Table A2.2: Evolution of Enrollment Rates for 6-12 Year-Olds Grades 1-6), 1989/90 - 1995/96 Enrollment 1989-90 1990-91 1991-92 1992-93 1993-94 1994-95 1995-96 net: 6 year olds 95.1 96.3 98.0 95.0 96.1 98.0 99.0 of which female 92.1 93.9 95.5 93.3 94.5 96.9 98.9 of which male 97.9 98.6 100.0 96.6 97.7 99.1 99.1 net: 6-12 y.o. 87.1 88.1 87.7 88.7 90.6 91.0 92.0 of which female 82.0 83.6 82.9 85.2 87.0 87.4 89.4 of which male 91.9 92.3 92.3 92.0 94.1 94.5 94.4 Annex 2 Page 3 of 6 Table A2.3: Evolution of Enrollment Rates in Secondary Education, Grades 7-13 Change Change Change Change From From From From Public prev yr Private prev yr Other prev yr TOTAL prev yr 1989/90 485090 10.9% 61863 18.5% 546953 3.2% 1990/91 496840 2.4% 67700 9.4% 564540 3.2% 1991/92 518522 4.4% 71152 5.1% 589674 4.5% 1992/93 567381 9.4% 71779 0.9% 5311 644471 9.3% 1993/94 605935 6.8% 69953 -2.5% 12116 128.1% 688004 6.8% 1994/95 662222 9.3% 71018 1.5% 15935 31.5% 749175 8.9% 1995/96 725926 9.6% 68468 -3.6% 17675 10.9% 812069 8.4% '89 - '95 100%50.0% 11.0% 232.0% 4 9 .0 % Table A2.4: Females as a Share of Total Enrollment, Grades 7-13 In Public % of Tot In EQT % Tot Tot Fem % of Tot 1989/90 216870 44.7% 0 0.0% 216870 39.7% 1990/91 225998 45.5% 0 0.0% 225998 40.0% 1991/92 241584 46.6% 0 0.0% 241584 41.0% 1992/93 267882 47.2% 1959 36.9% 269841 41.9% 1993/94 290008 47.9% 4540 37.5% 294548 42.8% 1994/95 320055 48.3% 5972 37.5% 326027 43.5% 1995/96 354057 48.8% 6699 0.0% 354057 43.6% Regional expansion of access in both primary and secondary is indicated below: Table A2.5: Enrollment in Primary (grades 1-6) by Governorate: 1989/90 and 1995/96 Tunis Ariana Ben Zagh. Bizerte Beia Jend. Siliana Le Kef Kasser Sidi Gafsa Arous IBouz 1989/90 117145 87004 51942 23107 74512 46968 62951 41426 42933 61652 62841 54272 1995/96 115103 93754 59716 23717 77469 44736 67826 39261 42513 70514 67244 57703 % change -1.7 7.8 1.5 2.6 4.0 -4.8 7.7 5.2 -1.0 14.4 7.0 6.3 Nat'l Tozeur Kebili Tataou Meden Gabes Sfax Mahdia Kair. Monas. Sousse Nabeul Avg 1989/90 14151 24200 25048 70181 52565 106404 54145 86387 55484 65039 89119 1369476 1995/96 15769 27788 29461 75006 57161 117258 61367 89107 62125 73569 91934 1460101 % change 11.4 14.8 17.6 6.91 8.7 10.2 13.3 3.2 12.01 13.1 3.2 6.6 Table A2.6: Enrollment in Secondary (grades 7-13) by Governorate: 1989/90 and 1995/96 Tunis Ariana Ben Zagh. Bizerte Beja Jend. Siliana Le Kef Kasser Sidil Gafsa Arous Bouz 89/90 - Tot 62076 23403 20730 5792 25355 16552 20056 13761 17498 17194 207101 19610 95/96 - Tot 77850 47767 33329 10449 37936 23767 30080 19971 22769 28808 325961 33396 % change 25.4% 104.1% 60.8% 80.4% 49.6% 43.6% 50.0% 45.1% 30.1% 67.5% 57.4% 70.3% Nat'1 Tozeur Kebili Tataou Meden Gabes Sfax Mahdia Kair. Monas. Sousse Nabeul Avg 89/90 - Tot 5490 8128 6050 19444 16458 43499 16570 22463 24539 28285 31427 222353 95/96 - Tot 8438 14556 12562 35565 27371 57401 23755 33603 32476 36504 44977 327208 % change 53.7% 79.1% 107.6% 82.9% 66.3% 32.0% 43.4% 49.6% 32.3% 29.1% 43.1% 47.2% Annex 2 Page 4 of 6 It should be noted that in primary and in secondary, the most disadvantaged gouvernorats were most likely to be those with the largest percentage increases. Tunis, arguably the most privileged gouvernorat, actually showed a small decline in primary and only a modest increase in secondary. The two most important exceptions are Le Kef and Beja which, although disadvantaged, saw actual declines in total enrollment in primary, and average growth in enrollments in secondary during the period in question. This is most likely due to demographic declines, and may also be an indicator of increased rural- urban migration. Increasing access of girls to education was an important reform achievement: in primary education, females as a share of total enrollment rose from 45.5 percent of all students in 1989/90 to 47.1 percent in 1995/96, and represented an additional 65,000 girls in primary school. In secondary, females as a share of total enrollment increased from 45.5 to 47.1 percent over the same period, and represented an additional 137,000 girls in secondary school. The increases by gouvernorats are as follows: Table A2.7: Female Enrollment as Percent of Total in Primar, (Grades 1-6) by Gouvernorate Tunis Ariana Ben Arous Z Bizerte Beja Jend. Sillana Le Kef Kasser Sidi Gafsa Bouz 1989/90 48.4 47.8 47.9 43.0 45.6 44.6 42.6 43.9 45.8 41.6 42.8 45.3 1995/96 48.8 48.5 48.5 45.3 47.2 46.8 44.6 45.7 46.9 44.3 46.1 47.0 % change 0.8 1.5 1.3 5.4 3.5 4.9 4.7 4.1 2.4 6.5 7.7 3.8 Nat'l Tozeur Kebfli Tataou Meden Gabes Sfax Mahdia lKai. Molasn Sousse NabeW Avg. 1989/90 46.5 47.0 44.9 46.5 46.1 45.4 43.6 41.5 47.2 46.8 47.5 45.5 1995/96 48.2 48.3 47.6 48.1 47.7 47.5 46.3 44.5 47.9 47.6 48.2 47.1 %change 3.7 2.8 6.0 3.4 3.5 4.6 6.2 7.2 1.2 1.7 1.5 3.5 Table A2.8: Female Enrollment as Percent of Total in Secondary (Grades 7-13) by Gouvernorate Tunis Ariana Ben Zagh. Bizerte Beja Jend. Siliana Le Kef Kasser Sidi Gafsa Arous IBouz 1989/90 52.4% 47.8% 50.1% 39.8% 46.8% 44.7% 42.8% 40.8% 46.3% 37.4% 34.1% 43.3% 1995/96 52.3% 52.0% 52.1% 46.6% 50.4% 49.5% 48.0% 47.0% 50.7% 42.7% 42.8% 47.8% % change -0.3% 8.9% 3.9% 17.0% 7.6% 10.7% 12.3% 15.3% 9.6% 14.3% 25.6% 10.4% Nat'l Tozeur Kebili Tataou Meden Gabes Sfax Mabdia Kair. Monas. Sousse Nabeul Avg 1989/90 49.3% 41.3% 32.0% 37.3% 42.9% 44.5% 39.0% 39.3% 48.2% 46.3% 47.7% 44.7% 1995/96 51.4% 48.7% 43.3% 46.4% 48.3% 47.9% 44.1% 44.8% 50.4% 50.4% 52.1% 48.8% % change 4.3% 17.9%, 35.3% 24.2% 12.6% 7.6% 13.2% 14.0% 4.6% 8.8% 9.2% 9.1% Again, the gouvernorats with the lowest enrollments for females were the ones that saw the highest percent increases in both primary and secondary. The best served areas in general had the lowest increases. Annex 2 Page 5 of 6 Ofective 2: T'o improve the quality and reevance of secondary education (grades 10-13) white controimg access to it. Quality of education was to be improved through interventions in programs and curricula, teacher training and teaching practices, and educational resources. The major vehicles for improving the quality and relevance of secondary education were the technical assistance and training activities financed by the project (see Table below). Programs and curricula. The reforms introduced a 9-year basic education cycle, and have replaced the 6th grade national examination with a regional examination. Secondary education, too, was restructured, and the distinction between general and technical secondary education was removed. The 3-year technician diploma program was phased out, and secondary education was changed to a two-year core program (10th and 11th grade equivalent), followed by two years in one of five major streams (humanities, experimental science, math, technical subjects, and economy-management). Teacher training and teaching practices. The reform was able to increase the numbers of primary school teachers to be recruited at the baccalaurgat level, and to provide them with formal pedagogical training: one year of intensive training followed by a year of combined training and internship. Extensive in-service training was provided to existing teachers to introduce them to the reform and to changes in curricula, as well as to new programs of study, textbooks, and instructional materials. Identification of student weaknesses and remedial instruction was also introduced in all teacher training courses. For secondary, programs were developed to introduce a year of subject-specific training for teachers of grades 7-9, and pedagogic training was introduced for graduates who have already started teaching without such training. Secondary school teachers without university degrees were provided with refresher courses. Higher Institutes for Teacher Training (Instituts Supgrieurs de la Formation des Maitres), which had replaced the former Teacher Training Institutes (Ecoles Normales d'Instituteurs), provided a two-year training course after the baccalaurgat and were able to meet the recruitment demand of the first cycle of basic education starting from September 1991. An in-service training program was able to sensitize staff already in place to the curriculum changes introduced by the reform. For the second cycle of basic education (grades 7-9) and for secondary education (grades 10-13), the additional demand for teachers was satisfied through the recruitment of graduates of the Higher Institutes (see above) for all subjects except for French and history/geography. This strengthened further the qualifications of the teaching corps. Educational resources: Public resources spent in education in Tunisia, as a share of GDP and of Government budget, equal or exceed those spent in other countries at similar per capita income levels. Budgetary allocations for education remain high, and the sector has been well-protected from fiscal reductions in the past few years. Total Annex 2 Page 6 of 6 recurrent expenditures in primary and secondary, as well as non-salary recurrent expenditures, have shown small declines over the past few years. Unit total recurrent costs in primary have also shown modest increases, whereas there have been small declines in real terms in secondary in 1993 and 1994 (see Annex 3). Although these figure do not necessarily reflect improvements or declines in quality, they show that expenditures on key qualitative inputs (textbooks, education materials, etc.) were not protected during the period when the project was under implementation. Annex 3 Page 1 of I Annex 3: Education Budget Cost effectiveness: Although the project sought to improve cost-effectiveness, it had not identified indicators nor had it set baseline values against which the impact of specific interventions could have been measured. The project financed a study to: (a) identify quantitative and qualitative indicators regarding the internal and external efficiency of the system; and (b) establish a methodology for the evaluation of the education system. In addition, the following tables indicate the trends in public expenditure in education during the project implementation period. Table A3.1: Investment Budget: 1989 - 1994 (current mill TD) 1989 1990 1991 1992 1993 1994 Primary 9,100 14,947 20,300 20,948 12,583 17,303 Secondary 34,700 37,746 55,100 54,952 62,317 59,597 Table A3.2: Recurrent Budget (%s) : 1989 - 1994 1989 1990 1991 1992 1993 1994 Primary recurr budget (TD mill) 202.593 226.201 276.485 299.564 322.578 366.037 Secondary recurr budget (TD mill) 179.628 205.055 224.111 253.786 272.916 314.739 Primary budget: non-salary 3.9 3.8 3.2 3.2 3.2 2.9 recurrent/total recurrent I Second budget: non-salary 9.5 10.9 10.2 9.9 9.6 8.6 recurrent/total recurrent Primary budget: salaries/tot recurr 96.1 96.2 96.8 96.8 96.8 97.1 Second budget: salaries/tot recurr 90.5 89.1 89.8 90.1 90.4 91.4 Prim recurrent/ total recurrent 52.1 51.4 53.7 52.6 52.7 52.8 Second recurrent/ total recurr 46.2 46.6 43.5 44.6 44.6 45.4 Unit Recurrent Costs in Primary and Secondary: 1989 - 1994 In current Tunisian dinars In constant 1990 Tunisian dinars Primary Secondary Primary Secondary 1989 155.3 383.0 1989 163.7 403.6 1990 168.5 431.9 1990 168.5 431.9 1991 202.8 465.1 1991 189.6 434.7 1992 217.8 502.0 1992 192.6 443.9 1993 231.0 495.3 1993 195.3 418.6 1994 253.8 530.3 1994 204.1 426.2 Source: Ministry of Education Statistics, 1996. Unit Non-salary Recurrent Costs in Primary and Secondary: 1989 - 1994 In current Tunisian dinars In constant 1990 Tunisian dinars Primary Secondary Primary Secondary 1989 5.75 35.54 1989 6.07 37.46 1990 6.10 45.10 1990 6.10 45.10 1991 6.16 44.29 1991 5.76 41.41 1992 6.64 44.12 1992 5.88 39.02 1993 7.08 43.05 1993 5.98 36.40 1994 7.28 40.65 1994 5.86 32.69 World Bank staff calculations using Government figures and deflator, 1997. Annex 4 Page 1 of 2 Annex 4: Sectoral Issues in Training In 1989, the training sector had no obvious single champion: The Ministire des Affaires Sociales (MAS - Ministry of Social Affairs) was the location of the Office de la Formation Professionnelle et de l'Emploi (OFPE - Office of Vocational Education and Labor), which was in charge, inter alia, of the majority of technical education and vocational training (TEVT) activities. However, significant TEVT activities were also being conducted in the then Mnistire de l'Education et des Sciences (now the Ministre de 'Education) as well as some activities within other technical ministries, public enterprises and private training institutions. The training sector across all ministries was merely a holding place for students who had failed out of general education, and was unsuited to prepare its students for jobs in the labor market or to provide them with sound technical knowledge. The training component had two major objectives, i.e. to promote pre- and in- service training in collaboration with companies in the productive sectors, and to mobilize additional resources for training. The project aimed to fulfill these objectives by: (a) financing the conversion of existing vocational training institutions into sectoral training centers catering to specific industries; and (b) by constructing new sectoral centers. The Pedagogic Engineering and Resource Center (Centre de Ressources et de I'IngMnierie PIagogique or CRIP) was to prepare, review, and appraise sub-project applications in accordance with criteria agreed upon at the time of negotiations of the project (criteria provided as annex to the SAR). Among others, the criteria included an agreement with industry associations and the establishment of the economic, pedagogic, financial feasibility. Between October 1988 and October 1991, the CRIP identified and participated in the formulation of the sub-projects (i.e. the creation of the new sector centers). Over this period, the CRIP worked with technical assistants on various missions to design the project as envisaged during the project preparation period. Contact with the various sector actors was given great emphasis, which included the enterprises and the relevant professional associations. Although the Office de la Formation Professionnelle et de l'Emploi (OFPE) had identified two projects that were ready to start at the time of negotiations, the first bid was not launched until October 1991 due in large part to: (1) the lack of familiarity of the Borrower with World Bank procurement guidelines and standard documents; and (2) with changes in policy regarding the criteria to be used to select sub-projects. From October 1991 to November 1993, the Direction des Equipements et Travaux (DET - the Department of Goods and Works) was put in charge of the civil works related to the construction and restructuring of the centers, including the procurement, disbursement, supervision and final reception of buildings and equipment). Annex 4 Page 2 of 2 This separation of responsibilities between conception (by the CRIP) and implementation of projects (by the DET) led to an untenable confusion of roles, and difficulties arose due to differences in approach between the two entities. The situation was somewhat resolved when the Ministry decided to merge the CRIP and the DET into one Direction des Projets de Centres (DPC - Department of Projects of Centers) with all of the responsibilities ranging from conception of ideas to reception of finished buildings and equipment. During the implementation period of this project, the strategic planning capacity was most severely eroded. Project execution was significantly delayed and was characterized by the following problems: (1) absence of sub-project directors who were adequately qualified in the sectoral areas; (2) absence of an information (tracking) system; (3) difficulties in synchronizing the actions of various actors, and (4) lack of commitment to new approach of involving enterprises in the management of the training sector. Since April, several fundamental changes have taken place that enabled the completion of the t . centers that were incomplete at the time of the first closing date. Subsequent projects, however, especially the Second Employment and Training Project, that became effective this fiscal year, will benefit greatly from these changes. With regard to the completion of this project, the new structure was able to: (1) provide an up-to-date plan of operations to complete the different sector centers as planned; (2) install a system of supervision that was computerized and updated frequently; and (3) a new role for sub-project directors (in the two instances of Djerba and Kairouan, the last two sector centers and the ones with the greatest difficulties, the sub-project directors charged with completing the works were also the ultimate heads of the centers themselves; as the final users of the centers, these sub-project managers were interested in having the centers constructed well and in a timely fashion). Tunisie Aide-mémoire Projet Education et Formation (3054-TUN) Etude des Causes d'Abandon Scolaire au Niveau de L'Enseignement de Base Mission du 11 au 20 mars 1997 Une mission de la Banque mondiale composée de Mme Meskerem Mulatu (chef de mission) et M. Georges Solaux (Spécialiste en éducation, consultant) a séjourné du 11 au 20 mars 1997 avec pour objectif de discuter les termes du rapport d'achèvement du projet Education/Formation (3054-TUN), et de définir les étapes à venir de l'étude sur le rendement interne de l'enseignement de base (Etude des Causes d'Abandon Scolaire). La mission a travaillé en collaboration étroite avec ses partenaires du Ministère de l'Education et ceux du Ministère de la Formation Professionnelle et de l'Emploi (MFPE). La mission a également rencontré avec profit les responsables administratifs et organisations non- gouvernementales chargées du dossier de l'aide sociale en milieu scolaire. La mission remercie le Gouvernement tunisien et les ONG pour l'accueil qui lui a été réservé. Projet Sectoriel Education et Formation (3054-TIUN) Le projet de rapport d'achèvement a été amendé en fonction des observations recueillies auprès des deux ministères. Dans les deux ministères la mission de la Banque et les représentants des administrations concernées sont tombées d'accord pour reconnaître l'opportunité du projet Education- Formation et l'importance de son impact pour le développement de la scolarisation et de la formation professionnelle en Tunisie. Au niveau du Ministère de l'Education, la mission de la Banque a recueilli une approbation globale sur le rapport après introduction de corrections suggérées par les représentants du ministère. Les annexes du rapport ont pu être complétées notamment sur les dates, échéances, nature et fonctions de quelques actions financées par le Prêt. En fonction d'informations fournies (i) sur l'organisation des études existant avant la mise en place de l'enseignement de base et la réforme des études secondaires et (ii) sur une présentation synthétique des actions de formation continue développées grâce au projet, les annexes du rapport ont pu être enrichies. Au niveau du MFPE, le projet de rapport a été discuté avec des représentants de l'Administration centrale du MFPE et des représentants de l'ATFP. Des corrections ont été apportées au rapport en fonction des observations recueillies, tant sur le contenu du rapport que sur celui des annexes. Les éléments positifs mais aussi les difficultés de réalisation du projet ont fait l'objet d'une analyse et d'un examen sérieux et efficace. Une version du projet de rapport d'achèvement ainsi corrigée a été déposée au Ministère de l'Education et au MFPE. Il est convenu que ces deux départements ministériels feront connaître leurs réactions finales au contenu du rapport et de ses annexes à la Banque avant le 31 mars 1997. Etude sur le rendement interne du premier cycle de l'enseignement de base. Entre le Ministère de l'Education et la mission de la Banque mondiale qui s'est rendue à Tunis du 10 au 22 juin 1996, il a été convenu qu'une étude sur le rendement interne (analyse des abandons) du système éducatif au terme de la sixième année de l'enseignement de base serait conduite par les services du Ministère de lEducation. L'étude est actuellement en cours de réalisation sous l'autorité du Ministère de l'Education, et elle est pilotée par le Directeur de la DPS. Une assistance technique étrangère permet d'apporter un regard extérieur et une expérience internationale en la matière. Le reliquat du Don japonais pour le secteur social finance l'étude. La situation actuelle du travail entrepris peut être résumée comme suit: (i) Une première étape s'est achevée à la fin du mois de janvier 1997 avec la réalisation d'un Rapport Intermédiaire. (ii) La seconde étape actuellement en cours se caractérise par une enquête auprès des Directeurs d'écoles, des familles et des élèves ayant abandonné. Le rapport d'exploitation de ces questionnaires sera disponible pour fin juin 1997. (iii) Troisième étape : les acteurs du système éducatif seront consultés en vue de recueillir leur avis sur les voies et moyens à mettre en oeuvre pour améliorer le rendement interne du système fin juillet 1997. (iv) Quatrième étape : l'étude sera complétée en septembre 1997 par les entretiens auprès d'instituteurs et de familles en vue de recueillir leur analyse du fonctionnement de l'école et des améliorations à y apporter afin de développer le rendement interne. Le rapport final sera disponible pour la fin du mois d'octobre. La mission de la Banque tient à souligner l'intérêt et le sérieux des méthodologies développées par la DPS dans la conception et la réalisation de cette étude. Le descriptif plus détaillé du déroulement de cette étude est joint en annexe 1. Il comprend un calendrier et la situation des dépenses prévisionnelles. Les questionnaires et la méthodologie de l'échantillonnage sont également joints en annexe. Concernant le paiement des dépenses engagées pour la réalisation de l'étude, il a été convenu entre la mission de la Banque, les représentants du Ministère du Développement Economique, et ceux du Ministère de l'Education que les frais occasionnés par l'étude seront imputés sur le reliquat du Don Japonais selon la procédure suivante : le Ministère de l'Education fait parvenir l'état et les destinataires des dépenses (déplacements, enquêteurs, expertise, publications) au Ministère du Développement Economique. Ce dernier ordonne à la Banque mondiale de payer les dépenses sur le reliquat du Don japonais. 2 La mission propose que ses prochaines missions auront lieu (i) en mai 1997 avec pour objectif la supervision du Projet d'Appui à L'Enseignement Secondaire (PAES), et (ii) en juillet 1997 pour la journée de réflexion des acteurs du système éducatif après l'analyse des questionnaires de l'Etude des Causes d'Abandon Scolaire. Ce projet d'aide mémoire sera confirmé dès que la mission arrive au siège de la Banque mondiale à Washington. Tunis, 19 mais1997 3 STATISTICAL TABLES Table 1: Summary of Assessments ................................................................ T-1 Table 2: Related Bank Loans/Credits ............................................................ T-2 Table 3: Project Timetable ............................................................................ T-3 Table 4: Loan/Cr-dit Disbursements: Cumulative Estimated and Actual ....... T-4 Table 5: Key Indicators for Project Implementation ...................................... T-4 Table 6: Key Indicators for Project Operation .............................................. T-4 Table 7: Studies Included in Project ............................................................. T-5 T able 8: P roject C osts .................................................................................. T -6 Table 9: Status of Legal Covenants .............................................................. T-7 Table 10: Compliance with Operational Manual Statements ............................ T-8 Table 11: Bank Resources: Stafflnputs ......................................................... T-8 Table 12: Bank Resources: Missions .............................................................. T-9 Page T-1 of 11 TABLE 1: SUMMARY OF ASSESSMENTS A. Achievement of Objectives Substantial Partial Negligible Not Applicable Macro policies X Sector policies X Financial Objectives X Institutional Development X Physical Objectives X Poverty Reduction X Gender Issues X Other social objectives X Environmental objectives X Public sector management X Private sector X development Other (specify) X B. Project Sustainability Likely Unlikely Uncertain x C. Bank Performance I_ghly Satisfactory Deficient Satisfactory Identification X Preparation assistance X Appraisal X Supervision X D. Borrower Performance H-ighly Satisfactory Deficient Satisfactory Preparation X Implementation X Covenant Compliance X Operation (if applicable) E. Assessment of Outcome Highly Satisfactory Unsatisfactory Highly Satisfactory Unsatisfactory x Page T-2 of 11 TABLE 2: RELATED BANK PROJECTS Loan Title Purpose Year of Status Approval Preceding Operations: First Credit Finance four new secondary schools, expansion of one other, and 1962 Project closed February extension to a teacher's college for training lower secondary 1967. teachers. Second Credit Finance nine new secondary schools. 1966 Project closed December 1975. Third Project Improve relevance of the primary curriculum to the socio- 1975 Project closed March economic environment. 1983. Fourth Education Project Support policy of expanding training opportunities for school 1981 Project closed in leavers and for skill upgrading of the workforce. The project December 1988. specifically supported plans for expanding and upgrading the apprentice training scheme, broaden ing the range of adult training opportunities through the establishment of new centers and the addition of new sections to existing centers, and improving the quality of vocational training through the re- equipping of poorly equipped workshops. Following Operations: Higher Education Restructuring The project aims to assist the Borrower in making its higher March 1992 Under supervision; 30% Project education system more cost-effective and responsive to the needs disbursed. of labor markets by (a) increasing the number of technical graduates; (b) providing incentives to higher education institutions to reform their programs and curricula, and (c) strengthening the higher education system's planning and management capacity and improving the distribution and use of resources following a normative system for resource allocation. The project aims to assist the Government to (a) implement its Secondary Education Support basic and secondary education reform program aimed at August 1994 Under supervision; 21.5% Project achieving improved quality and efficiency; and (b) improve disbursed access to accomodate projected increases in upper basic and secondary school enrollments. Employment & Training II The project would consist of the following three main April 1996 Under supervision. Project components: (a) Creation of a labor market information systen (LMIS). This component would help build the institutional capacity to monitor the operation of labor markets and training incentives so as to provide labor market information to individu- als, enterprises and managers from training centers. (b) Development of labor market services for displaced workers. Based on the experience of the Employment and Training Fund (ETF), the project would support a fund for the development of re-training and placement services for workers affected by economic restructuring; and (c) Reinforcement of the economic relevance oftrainine, which would consist of (i) financing ofthe reconversion and upgrading of existing training centers under the MFPE and creation of new training centers, on the basis of an as- sessment of the demand for the skills to be provided by the center and by an agreement between the MFPE and a federation of enterprises for the provision of "dual" training. (ii) Technical assistance would be provided for improving management of the VT tax and for the reinforcement of the CNFCPP. (iii) Technical assistance for the development of apprenticeships including firm- level training of trainers, curricula and pedagogical development Page T-3 of 11 TABLE 3: PROJECT TIMETABLE Steps in Project Cycle Date Planned Date Actual Identification Preparation (Pre-Appraisal) -_1/24/88 Appraisal November 1988 12/16/88 Negotiations March 1989 03/20/89 Letter of Development Policy (if applicable) n/a n/a Board Presentation - 05/11/89 Signing - 06/30/89 Effectiveness September 1989 10/30/89 First tranche release (if applicable) n/a n/a Midterm review (if applicable) 07/17/93 Second (and third) tranche release (if applicable) n/a n/a Project completion 09/30/94 09/30/96 Loan closing 03/31/95 09/30/96 Page T-4 of 11 TABLE 4: LOAN DiSBURSEMENTS: CUMULATIVE ESTIMATED AND ACTUAL (US$ million) FY89 FY90 FY91 FY92 FY93 FY94 FY95 FY96 FY97 FY98 Appraisal Estimate 0.00 12.00 28.50 48.00 71.00 88.50 95.00 95.00 95.00 95.00 Actual 0.00 5.64 13.30 30.94 63.69 77.71 85.94 89.85 93.09 93.10 Actual as % of estimate -- 47.0% 46.7% 64.5% 89.7% 87.8% 90.5% 94.6% 97.9% 98.0% Date of final disburs. 2/12/97 TABLE 5: KEY INDICATORS FOR PROJECT IMPLEMENTATION* Key implementation indicators in SAR/President's Report Estimated Actual N/A Modified indicators (if applicable) TABLE 6: KEY INDICATORS FOR PROJECT OPERATION* Key operating indicators in SAR/President's Report Estimated Actual N/A Although there were no indicators provided for project implementation, Annex 1 provides details regarding the quantified targets and policy measures that were planned, as well as the results of the implementation of these steps. Page T-5 of 11 TABLE 7: STUDIES INCLUDED IN PROJECT Technical Assistance and Training Activities in Education Action/Date of report Conducted by Output/Outcome Next steps Evaluation of the outputs BIEF (Belgium) Final report was Seminar was held to discuss of the education system/ finished the study. prepared which outlined study results with recommendations for the major indicators for participation from regional improvements, 1992/93. evaluating the outputs planning officials (cellules of the education system r9gionales de planification) MEd is presently tracking the major indicators as recommended Orientation (orientation CEPEC (France) scolaire), June 1994 completed study Didactic materials (low Response to letters No study carried out cost) of invitation was inadequate Technical education, 1996. CIDE (Canada) 3-phase study was MEd wrote a report on basis conducted study completed of this study Technical education Specialized 4 inspectors of technical (training abroad), 1992. institutions in education were trained Belgium in didactics of technical sciences Exams and assessment, BIEF (Belgium) 3-phase study Evaluation system defined in June 1994. completed; 3 seminars these seminars is the origin held for officials of the of current Comp6tences de MEd and pedagogic Base program staff Participation in TIMMS Boston College Tunisia participated Tunisia dropped out of the only in math, and only study. in Phase I Continuous education and CIDE (Canada) 3-phase study refresher courses for completed and teachers, July 1992 summary report was issued. Evaluation of the BIEF (Belgium) Study of programs, Study results were used to introduction of basic pedagogical methods, identify major obstacles to education in 1st and 2nd evaluation of student's students' acquisition, and year, Oct. 1993. work was done in helped define the primary schools and Comp6tences de Base report was completed. program Page T-6 of 11 TABLE 8: PROJECT COSTS Appraisal Estimate Actual/Latest Estimate Expenditure (USSM) (USSM) Category Gov't Bank Total Gov't* Bank Total* Civil works 63,9 60,1 124,0 59,4 54,8 114,2 Equipment, Vehicles & Furniture 10,2 19,7 29,9 19,2 28,8 48,0 Books and Educational Materials 0,0 4,3 4,3 0,0 6,7 6,7 Expert Services, Fellowships and Teacher Training 6,8 2,8 9,6 0,0 2,8 2,8 Unallocated 7,1 8,1 15,2 0,0 0,0 0,0 Total 88,0 95,0 183,0 78,6 93,1 171,7 * Actuals were not received from government. Figures are approximates. Page T-7 of 11 TABLE 9: STATUS OF LEGAL COVENANTS Original Revised Agreement Covenant Type Present Fulfillment flfillment Description of covenant Section status date date Comments 3.03 Implementation Complied NA NA The Borrower shall maintain a Both project coordinators project coordinator in each of have been appointed since MEN and ATFP. 1989. 3.04 Sectoral or Complied Before 31- Before 31- 10/31 each year, review Project Progress reports cross-sectoral Oct each Oct each achieved: reform program; for education and budgetary or year year school construction program; vocational training have other resource proposed inv. & recurrent been received regularly allocation expenditures budgets of MEN and are under Bank for following year, including review or have been level of non-salary measures to reviewed. Financial adjust reform program. project budget proposals are included in the Progress report. 3.05 Sectoral or Complied NA NA Schools to prepare and submit cross-sectoral to MEN for approval budgetary or pedagogical improvement other resource plans (acquisition of books and allocation educational materials); appraise each pedagogical improvement plan taking account priorities set forth in para. II of schedule 6. 3.06 Sectoral or Complied NA NA Borrower shall cause OFPE: To date 8 subprojects cross-sectoral based on procedures in have been presented to the budgetary or schedule 7 of L/A identify and Bank and approved. other resource appraise sub-projects to be allocation financed under the loan, thereafter, submit each sub- project to the Bank for approval. 4.01 Accounts/Audit Complied NA NA Borrower shall furnish no later Latest Audit report than 9 months after each fiscal received 05/16/96 year an audit report of project covering period of accounts including special calendar year 1994; account. Unqualified 4.02B Sectoral or Complied 12/31/93 12/31/93 Not later than 12/31/93 carry The report on the impact, cross-sectoral out study to evaluate quality quality and efficiency of budgetary or and quantity impact of sector the introduction of basic other resource action plan and its education (period 1989- allocation organisational and financial 93) has been prepared and impact on education and discussed with the Bank; training sector; furnish recommendations will be recommendations of study, taken into account take measures to adjust policy through the Governments in its education and training ongoing reform program. sector. 4.03 Sectoral or Complied 12/31/90 12/31/93 No later than 12/31/90 prepare Preventive maintenance cross-sectoral a preventive maintenance plan plan has been presented to budgetary or for all MEN schools; take the Bank; it will be other resource necessary action to ensure that implemented in the allocation all MEN schools are secondary education adequately maintained. project. Page T-8 of 11 TABLE 10: COMPLIANCE WITH OPERATIONAL MANUAL STATEMENTS Statement number & Title Describe & comment on lack of compliance N/A N/A TABLE 11: BANK RESOURCES: STAFF INPUTS Planned Revised Actual Stage of project cycle Weeks US$ Weeks US$ Weeks US$ Through appraisal 25.4 85.3 Appraisal - Board 8.1 28.3 Board - Effectiveness 102.6 321.4 Supervision 261.0 344.3 Completion 5.5 23.7 11.4 40.2 12.4 47.7 TOTAL 230.6 827.30 ** Due to system changes from MIS to COS, Plan and Revised Data are not available for the fill project cycle Page T-9 of 11 TABLE 12: BANK RESOURCES: MISSIONS Stage of M/Y No. Days in Specialized staff Performance rating Types of problems project cycle pers. field skills represented Implem. Develop status object. Through 9/88 4 11 Educ. Econ.(TM) * appraisal Employm. Spec. VT Spec. Division Chief Appraisal 12/88 5 16 Educ.Econ.(TM)P * through Board roject Officer approval Architect VocTraining Spec Educ. Spec. Initial 6/89 2 12 Educ. Econ.(TM) Summary Educ. Spec. Supervision 11/89 1 13 Educ. Econ.(TM) 1 1 * 10/90 3 12 Educ. Spec. (TM) 1 1 LCB procedures causing delays in Architect education. Technical Assistance Educ. Spec. programs still not started. Training program on track with several subprojects in pipeline. Legal status and autonomy of centers still an issue. 5/91 4 10 Educ. Spec. (TM) 2 1 Education: Delay in 9 year basic Architect education; govt. wants local rather Financial Analyst than foreign TA; implementation VocTraining Spec of construction is on target. Institutional development lacks innovation. 9/91 2 11 Educ. Spec. (TM) 1 1 Education: 4 CRIP-prepared Financial Analyst feasibility studies have been accepted. Problems including weak evaluation and planning capacity of CRIP; legal status of CSs; poor quality of feasibility reports, weak involvement of enterprises in planning, fumctioning and management of CSs. OFPE not reporting progress as in loan agreement. Page T-10 of 11 Stage of M/Y No. Days in Specialized staff Performance rating Types of problems project cycle pers. field skills represented Implem. Develop status object. Portfolio 07/92 1 15 Educ. Spec. (TM) 1 2 MEN Status Update - A significant proportion of basic education graduates will be channeled into vocational training courses; however, there are constraints in terms of physical capacity and financial resources. - Lack of adequate cost-benefit analysis (internal and external efficiency) of the reform plans. - Lack of coordination between the MES and the Ministry of Vocational Training and Employment (MFPE). - Absence of subsector action plans to support the strategies laid out in the VIlIth national development plan. OFPE - Lack of management quality and capacity within the OFPE. - Weak coordination between MFPE and OFPE. - Lack of adequate financial analysis related to protected recurrent costs in rehabilitated and new vocational strategies. Supervision 11/92 2 10 Educ. Econ. 2 2 - Lack of synchronization between Educ. Spec. (TM) the arrival of equipment and the termination of the buildings. - Technical assistance is lagging behind: lack of monitoring of the training of trainers program and little progress are made in the development of training programs. 2/94 Educ. Spec. (TM) 1 * Architect Operations Assist. 11/94 2 8 Educ. Spec. (TM) S S - Implementation delays due to the Assess. Spec. reorganization of the VT sector in 1992 and 1993. - Management quality and capacity of the new ATFP is still weak. 06/95 3 8 Educ. Spec. (TM) S S - Technical assistance to assist Educ. Spec. with the overall management of the Architect centers has not yet taken place. Page T-11 of 11 Stage of M/Y No. Days in Specialized staff Performance rating Types of problems project cycle pers. field skills represented Implem. Develop status object. 10/95 3 7 IR. Spec. (TM) S S - Delayed audits. Problems of Architect finding suppliers of specialized Educ. Spec. equipment. Remaining activities to be completed by project closing. 06/96 4 10 HR. Spec. (TM) U S - Delays in construction and Educ. Spec. equipment installation at the Architect centers of Kairouan and Djerba Proc.Assistant. have created the most immediate problem. 10/96 3 12 HR. Spec. (TM) S S Education component: The Architect progress report given to the Educ. Spec. mission did not pay adequate attention to the training and technical assistance aspects of the project. The Borrower agreed to send to the Bank the supplements necessary to bring the progress report up to date on those aspects. Training component: Only the works to be financed by the Bank had been completed on the two remaining centers. The mission noted with concern that neither center would be completed as planned, due largely to fundamental problems with the physical restructuring plan in Kairouan, and with the lack of several essential elements (and the remarkably bad planning of others) in Djerba. The Borrower will keep the Bank informed as to the progress of these centers. In either case, both centers will be operational before the beginning of the next school year (November for Djerba, and early in the new year for Kairouan). ICR 3/97 2 10 HR. Spec. (TM) S S Project closed on 09/30/96. Last Educ. Spec. payment made 02/12/97. Min. Ed. did not provide own report but accepted Bank version as joint report once a few changes were made. MFPE provided own report and commented on final version. Note: On 1 April 1997, both implementing agencies sent final comments and accepted draft as joint Borrower-Bank document. * Due to problems of transferring information between two computer systems, further details are not available at this time. г о � � ш и а а � IBRD 24726R 9 o! 7° 9° 0c.G l I o ° MEDITERRANEAN Bizerie Trns SEA Ariana Bela IdJNIS j ejo Ber1 Arous Jendouba Zgh u Nabeul El Kef iS na GI /s riHa ra er Sousse Kai,ou, i (DMonastir M(NAST!R 0Mahdia Kasserine 35 35- Sidi Bou zid.Sf ax .D Gafsa I Is C t I GarsoGi i; Ashtort c 34- Tozeure Gabes rTOZEUR Chott el eçbeli Jerid 33j 313' Tataouine TUNISIA 3 TUNISIE SALT LAKES LACS SALES I GOVERNLORATE CAPITALS CAPIALES DES 5_ _i_ GOUVERNORATS KILOMETERS GOVFRLNORATE BOJNDAR ES FRONTIERES PES , boudones, colors. neninaornsirnd anry GOsU VERNORATS ter rmion shown NATýONAL CAPITAL • :piy, o the por o CAP TALE DU PAYS nhe Warirn Group, /fstats of ainy r-tory, NTFRNATJONAL BOUNDARE * Ir any endorsenenr FRONTIERES iNTERNATIONAI FS • i o ccepac ot uh APRIl 1995 IMAGING Report No.: 16574 Type: ICR