Document of THE WORLD BANK FOR OFFICIAL USE ONLY Report No. 19485 IMPLEMENTATION COMPLETION REPORT BURKINA FASO EDUCATION IV PROJECT (Credit 2244-BUR) June 28, 1999 Human Development III 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. EXCHANGE RATES Monetary unit = CFA franc (CFAF) The CFAF is tied to the French Franc (FF) in the ratio of FF I to CFAF 100 following the January 12, 1994 devaluation of the CFAF from a ratio of FF I to CFAF 50. The French Franc is currently floating. 1992 US$ = CFAF250 1996 US$ = CFAF550 1993 US$ = CFAF270 1997 US$ = CFAF590 1994 US$ = CFAF470 1998 US$ = CFAF640 1995 US$ = CFAF490 1999 US$ = CFAF607 SDRI = US$1.36 (May 1999) WEIGHTS AND MEASURES Metric system FISCAL YEAR OF THE BORROWER January I - December 30 ABBREVIATIONS AND ACRONYMS AME Association des Meres Educatrices (Teaching ENEP Ecole Nationale des Enseignants du Primaire Mothers Association) (National School for Basic Education Teachers) APE Association des Parents d'Eleves (Parents GAP Groupes d'Animations Pedagogiques Association) (Pedagogic Advisors Groups) APL Adaptable Program Loan GER Gross enrollment ratio CAS Country Assistance Strategy GNP Gross National Product CIDA Canadian International Development Agency ICR Implementation Completion Report CEG College d 'enseignement general IA Instituteurs Adjoints (Auxiliary Teachers) CEP Certificat d'Ecole Primaire (Primary School ICB International Competitive Bidding Certificate) IDA International Development Agency CPI Conseiller Pedagogique Itinerant (Travelling IEPD Inspecteur Enseignement du Premier Degre Pedagogic Advisor) (Primary school inspector) DAAF Direction des Affaires Administratives et INSE Institut National des Statistiques et de I 'Emploi Financieres (Directorate for Administrative (National Institute for Statistics and Employment) and Financial Affairs) IPB Institut Pedagogique du Burkina (Pedagogic DEBP Direction de l'Enseignement de Base Prive Institute) (Directorate for Private Basic Education) ITF Interim Trust Fund DEC Direction des Examens et Concours MEBA Ministry of Basic Education and Literacy (Directorate for Exams and Competitive MESSRS Ministry of Secondary and Higher Education and Examinations) Scientific Research DCA Development Credit Agreement MTR Mid-term Review DEP Direction des Etudes et de la Planifcation NCB National Competitive Bidding (Directorate for Studies and Planning) NGO Non-governmental Organization DES Division de l'Edition scolaire (Directorate for PER Public Expenditure Review Textbook publishing) PPEP Post-primary Education Project DOB Direction de l'Orientation et des Bourses SAL Sectoral Adjustment Loan (Directorate for advising and scholarships) SAR Staff Appraisal Report DPEBA Direction Provenciale de I'Education de Base SDR Special Drawing Rights et de 1'Alphabeitisation (Regional Directorate SNP Service National Populaire (People National for Basic Education and Literacy) Service) SPEF Service Promotion de I 'Education des Filles (Department Promotion of Girls' education) UNICEF United Nations Children's Fund Vice President: Jean-Louis Sarbib Director: Hasan Tuluy Sector Manager: Helena Ribe Resident Representative: Manga Kuoh Task Team Leader: Makha Ndao BUJRKINA FASO EDUCATION IV PROJECT FOR OFFICLAL USE ONLY (CREDIT 2244-BUR) IMPLEMENTATION COMPLETION REPORT TABLE OF CONTENTS PREFACE ............................................. .. EVALUATION SUMMARY ............................................. II PART I: PROJECT IMPLEMENTATION ASSESSMENT ..............................................1 I. INTRODUCTION I A. Macroeconomic Setting ......................................1.. B. The Bank's Role in the Country and the Sector ......................................l 11. PROJECT OBJECTIVES ........................................2 A. Original Project Objectives .2 B. Project Description and Components .3 C. Credit Covenants and Special Agreements ..3 D. Risks..4 E. Evaluation of Project Objectives ..4 III. IMPLEMENTATION EXPERIENCE AND RESULTS ............................................5 A. Assessment ofProject's Success and Sustainability .......................:..................5 B. Summary of Project Costs ....................................... :.9 C. Summary of FinancingArrangements ..9 D. Implementation Schedule ....................................... .. 10 E. Analysis of Key Factors Affecting Project Implementation . .10 F. Assessment of the Bank's and Borrower's Performance . .11 G. Assessment of Project's Outcome .. 11 IV. SUMMARY OF FINDINGS, FUTURE OPERATIONS, AND KEY LESSONS LEARNED .......... 12 A. Important Findings of Project Implementation Experience . ............................................... ....-.-..12 B. Future Operations and Sustainability .................................................................... 12 C. Lessonsfor Future Projects in the Sector in Burkina Faso . ........................................................... 13 PART II: STATISTICAL TABLES .......................... 15 TABLE 1: SUMMARY OF ASSESSMENTS .16 TABLE 2: RELATED BANK CREDITS .17 TABLE 3: PROJECT TIMETABLE . 18 TABLE 4: CREDIT DISBURSEMENTS: CUMULATIVE ESTIMATE AND ACTUAL AMOUNTS . 19 TABLE 5A: PERFORMANCE INDICATORS .20 TABLE 5B: KEY INDICATORS OF PROJECT IMPLEMENTATION ..................................... 21 TABLE 6: STUDIES INCLUDED IN THE PROJECT .30 TABLE 7A: PROJECT COSTS (BY COMPONENT). 3 1 TABLE 7B: PROJECT AMOUNT (BY CATEGORY OF EXPENDITURES) .32 TABLE 7C: PROJECT FINANCING .32 TABLE 8: ECONOMIC COSTS AND BENEFITS ..................................... : 32 TABLE 9: STATUS OF LEGAL COVENANTS .33 TABLE 10: BANK RESOURCES: STAFF INPUTS .39 TABLE I IA: BANK RESOURCES: MISSIONS .40 TABLE 11 B: WORLD BANK RESOURCES: SUPERVISION MISSIONS .41 APPENDICES A. ICR mission's Aide Memoire B. Borrower's Contribution to the ICR 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. BURKINA FASO EDUCATION IV PROJECT (CREDIT 2244-BUR) IMPLEMENTATION COMPLETION REPORT PREFACE 1. This is the Implementation Completion Report (ICR) for the Education IV Project in Burkina Faso for which Credit 2244-BUR was approved on May 21, 1991, in the amount of SDR 17.8 million (US$24.0 million equivalent) and was made effective on January 3, 1992. The Credit was closed on December 31, 1998. It was disbursed up to the amount of SDR 17.77 million (US$26.0 million equivalent) and the undisbursed amount of SDR 33,820 (US$ 45,100 equivalent) was canceled on June 25, 1999. 2. The ICR was prepared by Makha Ndao (Sr. Education Specialist, AFMBF), Celine Gavach (Language Team Assistant, AFTH3), Sakhevar Diop (Textbooks Specialist, AFTH3), and Souleymane Zerbo (Consultant/Civil Works). Nicole Hamon (Language Team Assistant, AFTH3) provided inputs on the statistical tables; Johanne Angers (Sr. Operations Analyst, AFTH3) and Ross Pfile (consultant) edited the report. The report was reviewed by Helena Ribe (Sector Manager, AFTH3), Hasan Tuluy (Country Director for Burkina Faso), Celestin Monga (Economist, AFM4), Manga Kuoh (Resident Representative in Burkina Faso), Francoise Perrot (Operations Analyst, AFC 15), and Irene Xenakis (Senior Implementation Specialist, AFTH3), as well as by members of the Burkina Faso Country Team and advisors in the Education sector. 3. The Bank's supervision mission in June 1998 began the preparation of this ICR. The report is based on the Staff Appraisal Report, the Development Credit Agreement, supervision reports, correspondence between the Bank and the Borrower, discussions with other donors and beneficiaries, and other relevant records. A short mission undertaken in January 1999 allowed the mission team the opportunity to discuss the key lessons of the draft ICR with the Borrower. The Borrower contributed to the ICR preparation by discussing the aide-memoire of the Bank's final supervision mission, commenting on the draft ICR, and preparing its own evaluation of the project's execution, which can be found in Appendix B. The Government contribution to the ICR was discussed with both donors and stakeholders and was presented and approved by the Council of Ministers. In addition, the Ministry of Basic Education and Literacy (MEBA) received praise from the President, who instructed the Minister of Basic Education and Literacy to award decorations (Palmes academiques) to project staff responsible for the various components. The Minister of Basic Education and Literacy has confirmed in a letter dated June 2, 1999, his agreement to the content of the ICR. BURKINA FASO EDUCATION IV PROJECT (CREDIT 2244-BUR) IMPLEMENTATION COMPLETION REPORT EVALUATION SUMMARY 1. The Bank's Role in the Country and the Sector. The project under review is the fourth of five IDA-funded projects aimed at supporting the education sector in Burkina Faso. The other projects include the First Education Project (Cr. 430-UV for an amount of US$2.8 million, approved in 1973); the Second Education Project (Cr. 956-BUR for an amount of US$14.0 million, approved in 1979); the Primary Education Development Project (Cr. 1598-BUR, for an amount of US$21.6 million, approved in 1985); and the Post-primary Education Project (ITF N0070-BUR for an amount of US$26.0 million, approved in 1997) (para. 4). The 1996 World Bank's country assistance strategy for Burkina Faso stressed the need for a sound macroeconomic environment to enable equitable growth and poverty reduction. It also stressed the need for accelerated provision of social services to the poorest Burkinabe to allow them to fully benefit from new income and growth opportunities. The strategy specifically emphasizes three objectives: (a) to achieve macroeconomic stability by sustaining real GDP growth at 5 percent and by raising domestic revenue and public savings; (b) to provide social services in education and health; and (c) to create income opportunities in the sectors of agriculture, mining, finance, infrastructure, water, and the environment (para. 3). 2. Objectives of the Education IV Project. The main objectives of the current project were to assist the Government in further improving the quality of primary education and increasing the enrollment rate from 31 percent in 1989/90 to 40 percent by 1996/97; improving the quality of general secondary education; and strengthening key sectoral institutions. The project also aimed for the improvement of resource allocation and utilization in order to increase access to primary education (para. 5). 3. Evaluation of Project Objectives. Overall, the project was successful in broadly achieving its objectives. The main objectives of the project were essential for achieving the Government's overall goal for the education sector. The Government drew from the experience gained through former projects and decided to provide education through formal primary education under the Education III project, which helped increase the primary school enrollment rate from 15 percent in 1980 to 31 percent in 1989/90. Based on these results, the Government developed specific reform measures aimed at increasing resources for primary education and improving effectiveness in the use of those resources, limiting expenditures related to student subsidies in secondary and higher education, and promoting private provision of education (para. 12). Implementation Experience and Results 4. Assessment of Project's Success and Sustainability Improving the quality of primary and secondary education, and access to primary education The project supported reforms to improve the quality of education through pre-service and in-service teachers' training. As a result, the proportion of qualified teachers increased from 18.6 percent in the whole country in 1990/91 to 54.5 percent in rural areas and 80.8 percent in urban areas in 1997/98 (para. 13). 5. The initial quantitative targets of the project-building 1,200 classrooms and rehabilitating 300 classrooms-were exceeded, in that 1,829 classrooms were constructed and 591 rehabilitated. Nevertheless, the strategy calling for grants for local community labor costs was not implemented because of its complexity. At the Mid-term Review (MTR), it was decided to implement the civil works program through: (a) delegation of the responsibility for management and implementation of civil works to Faso Baara (the executing management agency); (b) use of private engineering consulting firms (maitrise d'oeuvre deleguee); and (c) community participation through a classroom normalization strategy. However, the quality of some classrooms and housing built is uncertain. Finally, the maintenance guide for construction to be distributed to the Parents' Associations (APE) was not developed, and building maintenance currently depends on the APE's initiative (para. 15). 6. The project succeeded in the areas of textbook development, production, distribution, and capacity building in book publishing. The use of private authors contributed to reducing the average manuscript writing time from 12 to 6 months. This approach helped complete the publishing program ahead of schedule, reduce the cost of textbooks by about 63 percent, and provide schools with better quality textbooks. However, the textbook rental scheme did not function as expected because many students experienced difficulties in paying the rental fees. Following the MTR, books were loaned free of charge to students in schools implementing efficiency measures (double-shift and multigrade teaching) and to girls in areas where the proportion of female students is less than 10 percent. The proceeds from textbooks sold to students were deposited into a Textbook Fund, as well as 5.4 percent of the recurrent budget for primary education for teaching materials and textbooks. This allowed for the reprinting and editing of new textbooks (para. 16). 7. The project has substantially met its goals to increase access of primary education and improve the quality of primary and secondary education. The overall primary school gross enrollment ratio (GER) reached 41 percent in 1997/98. The overall share of girls increased from 37 percent in 1990/91 to 40 percent in 1997/98 (from 31 percent to 39 percent in the public school system during the same period, compared with a stagnant 42 percent in private school systems). Total enrollment increased from 472,979 students in 1988/89 to 777,691 in 1997/98, an average rate of increase of 6.4 percent per year. The total enrollment of female students increased from 179,646 in 1990/91 to 310,496 in 1997/98, representing an average rate of increase of 7.1 percent, compared with 6.0 percent for boys. The combined system of double- shift and multigrade teaching helped enroll approximately 80,000 additional children, who would not otherwise have had a chance to attend school. Enrollment in private schools rose from 43,629 students in 1991/92 to 89,017 students in 1997/98. At the same time, the number of iv student years funded to produce a primary school graduate has been reduced from 26 to 12, while the success rate in the Primary School Certificate (CEP) exam rose from 24 percent to 53 percent. In addition, in 1985, out of a cohort of 1,000 students, only 690 completed primary school, compared with 800 students in 1997. Finally, the grade repetition rate decreased from 17 percent in 1990/91 to 14 percent in 1997/98 (para. 17). 8. Strengthening key sectoral institutions on policy formulation and implementation and improving operational efficiency. The project supported training of staff in: (a) personnel management and budget preparation and control; (b) data collection and analysis; and (c) educational policy. Support given by the project and the French Cooperation allowed for increased capacity in data collection and analysis and in the development of school mapping. The support provided by the European Union and the project improved the budget preparation system and led to budgeting by objectives. Capacity for policy analysis also improved (para. 18). 9. Key policy measures. The average annual rate of increase of the Government's budget devoted to primary education was 9.5 percent from 1991 to 1997, compared with 8.4 percent for post-primary education, which includes lower and upper secondary, technical and vocational training, and tertiary education. The rate of increase for the education sector as a whole was 9 percent. From 1995 to 1999, MEBA's budget increased by about 1.3 percent, compared with an increase of 1.2 percent for the Government budget; internal allocations of the budget have become more efficient. The proportion of MEBA's budget devoted to salaries has decreased from 84.66 percent in 1995 to 69.7 percent in 1999 due to efficiency measures. New teachers were hired each year through the Government budget, demonstrating the priority given to primary education through the provision of teachers. Additional teaching staff also helped reduce the student/teacher ratio from 57 to 47 between 1990/91 and 1997/98 (para. 19). 10. Total student social subsidies in secondary and higher education decreased from CFAF 4.8 billion to CFAF 3.1 billion. The project's efficiency measures continue to be satisfactorily implemented: (a) the proportion of higher education students with scholarships decreased from 97 percent in 1988/89 to 36 percent in 1998, and higher education scholarships awarded have been limited, with priority given to female students enrolled in scientific fields; (b) 60 percent of university dormitory places are allocated to female students; and (c) secondary school scholarships are being progressively eliminated, decreasing from 22,750 to 6,303. Only girls from the ten provinces with the lowest enrollment rates are eligible for the remaining scholarships. Burkina Faso has made progress in increasing cost recovery. To increase efficiency in the use of primary school teachers and classrooms, multigrade teaching was introduced in 1,847 classrooms and double-shift teaching in 950 classrooms (compared with the project's target of 840 and 590 classrooms, respectively). These measures helped increase total enrollment by 23 percent (para. 20). 11. To promote private initiatives in the provision of education, incentive measures were implemented: deregulation of fees, easy access to land for school construction, and provision of teachers' in-service training. As a result, enrollment in private schools rose from 43,629 students in 1991/92 to 89,017 students in 1997/98 (para. 21). v 12. Sustainability. Because primary education was developed with a view to future sustainability, several factors are expected to contribute to project sustainability: (a) budget reallocation in favor of primary education; (b) more efficient resource use; (c) increased community participation; and (d) capacity to produce low-cost textbooks and construct low-cost classrooms. The adjustment measures that affected teachers and students (double-shift teaching and reduction of students' social subsidies) have matured and are well internalized. To strengthen the education reformns, the Government has prepared a post-primary education programn supported by the PPEP (ITF 007-BUR) and is finalizing a Basic Education Ten-Year program. Thus, the project's sustainability can be rated as "likely" (para. 22). 13. Summary of Project Costs and Financing Arrangements. Total project expenditure amounted to US$39.4 million, compared with an appraisal estimate of US$46.4 million equivalent. Of this amount, IDA contributed 66 percent; the Kingdom of Norway, 9 percent; the European Union (EEC), 9 percent; the Kingdom of Belgium, 15 percent; local participation, 1 percent; and the Government, 1 percent. These amounts compare with the financing percentages established at the time of Board Presentation: IDA, 52 percent; Kingdom of Norway, 8 percent; EEC, 16 percent; Canadian International Development Agency (CIDA), 19 percent; local participation, 4 percent; and Government, 2 percent. CIDA was to cofinance the project but later decided to finance activities to improve education quality outside the Education IV Project. After the Mid-term Review, a grant from the Kingdom of Belgium helped finance the construction program. Also, outside the framework of the Education IV Project, a grant from the Netherlands provided additional resources for construction and rehabilitation. The foreign exchange component was estimated at the time of appraisal at US$32.0 million equivalent (69 percent). Due to modification of the originally planned construction implementation strategy, construction expenditures, as well as those activities financed by the Belgian grant, were in local currency. Therefore, the actual foreign exchange component amounts to only US$4.8 million equivalent (12 percent of total project costs) compared with US$34.8 million equivalent (88 percent of total project costs) for local costs. IDA's credit was disbursed at 99.8 percent of the total credit amount (SDR 17.77 million over SDR17.8 million) (paras. 24-26). 14. Analysis of Key Factors Affecting Project Implementation. At appraisal, two key issues were identified: (a) increasing budgetary allocations for primary education and reducing student subsidies; and (b) the ability of communities to effectively contribute 10 percent of school construction costs. The first was identified as a risk because of pressure for the status quo from ministries and the educational establishment To overcome this pressure, wide-ranging consultations were organized, leading to strong support for primary education. The second risk was overcome by starting the project with the pilot program conducted during the Education III project. Implementation faced several difficulties: (a) donors' various classroom-delivery approaches led communities to question the rationale for having to contribute to classroom construction under the IDA project when other donor-supported schemes did not require cost- sharing; and (b) the high incidence of poverty (45 percent of the population in 1995) and the cumulative effect of cost-sharing in various activities (health, agriculture, education, etc.) constituted an obstacle to sustained financial contributions by the communities. It was therefore vi decided during the MTR to rely on small, local contractors for school construction, following a selection process involving local communities. The issue was addressed to both the Bank's and the Government's satisfaction (para. 28). 15. Assessment of the Bank's and Borrower's Performance. The Bank's performance was, overall, satisfactory during project identification and preparation. The risks were correctly identified. However, a sound monitoring and evaluation system should have been established to assess the project's outcomes during implementation. Project implementation started in an uncertain environment that was further complicated by the high turnover of local counterparts. Under these circumstances, the Bank's supervision was effective. Adequate efforts were made to preserve continuity in task management. The Bank also demonstrated understanding and flexibility with regard to the changes that the country experienced. The delegation of responsibility, in 1997, to the Resident Mission and the strengthening of the Resident Mission's capacity with regard to procurement matters also contributed to improving communications and informnation exchanges between the Bank and the local project team. Furthermore, the project's MTR was the catalyst for donor coordination, which culminated in the current sound dialogue among donors and between donors and the Government. The Borrower's performance was satisfactory during the project preparation phase, but deficient during project start-up, due to a large turnover of key civil servants. This required some adjustment during project implementation. After this adjustment, there was continuity in the project team and key staff of the ministry, which helped to substantially improve project execution and led to a satisfactory implementation (paras. 29-30). Summary of Findings, Future Operations, and Key Lessons Learned 16. Important Findings of Project Implementation Experience. For the most part, execution of this project and disbursements were on schedule throughout the life of the project, and covenants were in compliance. Disbursement procedures were regularly followed, resulting in no rejections from the Bank and in unqualified opinions from the auditors. The project was supervised regularly. Changes in the task management did not have any negative impact. However, the opportunity cost of education remains high for poor families, which impedes a more dynamic demand for education among Burkinabe households. Addressing demand-side issues is therefore an important factor to overcome resistance to schooling (para. 32). 17. Although the project met its goals, the following lessons should be taken into account for future operations (para. 34): * The Government should, at an early stage, develop a comprehensive policy franework for an effective intervention of all donors in the sub-sector. * To guide implementation and build momentum, reasonably detailed implementation arrangements covering the first year should be developed before the project becomes effective. vii * Faster development of primary education is constrained by high education unit costs and inefficient resource use and allocation. To further address this issue, the Government is considering recruiting more teachers at a lower salary, developing low-cost pedagogical materials, reducing grade repetition, and increasing the share of basic education in the total education budget. * While the supply of education has helped increase enrollment, there are localities where the provision of a school itself is insufficient to increase access. The Government would have to develop a demand-side approach to overcome resistance to schooling prior to investment. * Standardized assessment of student learning should be made available. Although testing and evaluation system is integrated in the ongoing Post-primary Education Project, the Government will create, as part of the future operation, an "Observatoire de 1'education" to deal with the monitoring of quality and access and to identify sectoral issues at an early stage in order to provide early corrective measures. * For school construction programs, it would be more efficient to: (a) engage small, private, local contractors to use a kit of standard construction materials and plan for a maximum of three classrooms; and (b) delegate more responsibility to local communities to do the work themselves or contract the work to local artisans or small entrepreneurs, with financial and technical assistance from the project. * A technical evaluation of current construction programs is underway in order to determine the different types of interventions, costs, and timeframe to be recommended for future operations. BURKINA FASO EDUCATION IV PROJECT (CREDIT 2244-BUR) IMPLEMENTATION COMPLETION REPORT PART I: PROJECT IMPLEMENTATION ASSESSMENT I. INTRODUCTION A. Macroeconomic Setting 1. Burkina Faso is a resource-poor, landlocked country in a transitional zone between the Sudano-Guinean regions and the Sahel. Although fragile, soils are comparatively fertile. The majority of Burkina Faso's population of roughly 10 million depends mainly on agriculture and raising livestock. Poverty remains widespread in Burkina Faso with an estimated 45 percent of the population living under the poverty threshold; a GNP per capita estimated at US$220 in 1998; and low social indicators. Low health indicators in Burkina Faso, even by sub-Saharan standards (life expectancy of 45 years), and the low health status of the population remain a major constraint to economic and social development. Considerable progress has been made in recent years to raise school enrollment, but educational levels in Burkina Faso are still very low. Gross primary school enrollment was estimated at 42 percent in 1998, and the illiteracy rate of 78 percent remains one of the highest in sub-Saharan Africa. Universal primary education is still a distant goal. 2. Burkina Faso has established an extended adjustment track record under successive programs supported by the World Bank and the International Monetary Fund since 1991. Under these programs, the Government of Burkina Faso implemented a broad range of reforms that have largely succeeded in their basic objective of redirecting the economy from a centralized to a market-oriented mode and of restoring a viable macroeconomic position and laying the groundwork for a major effort to improve social conditions in the coming years. Substantial progress has been made in the management of public expenditures, with increasing amounts allocated to the improvement of basic health and education services. B. The Bank's Role in the Country and the Sector 3. Fifty credits have been approved for Burkina Faso, amounting to US$897 million. IDA strategy, articulated in 1996, is to support the Government in its goal to achieve sustainable development and poverty reduction through increased economic growth and better targeted human resource development. The strategy emphasizes three objectives: (a) achieve macroeconomic stability by sustaining real GDP growth at 5 percent and by 2 raising domestic revenue and public savings; (b) provide social services in education and health; and (c) create income opportunities in the sectors of agriculture, mining, finance, infrastructure, water, and the environment. In education, the strategy is to increase school enrollment at the primary and secondary levels, increase the gender ratio in favor of girls, and increase the participation of the private sector. The Bank's current portfolio, with commitments of US$282 million (undisbursed amount of approximately US$152 million equivalent), includes 11 projects under supervision in agriculture, education, transport, health, the urban environment, private and public sector assistance, and mining. 4. The First Education Project (Cr. 430-UV, US$2.8 million, closing date November 1980) was designed to: (a) support informal sector training by providing rural youth with basic literacy and agricultural training; and (b) strengthen the teaching of science in secondary schools. The Second Education Project (Cr. 956-BUR, US$14.0 million, closing date August 1986) continued support for the rural youth training program started under the first project, including in-service training for agricultural project managers and public works personnel. The Primary Education Development Project (Education III Project, Cr. 1598-BUR, US$21.6 million, closing date March 1994) supported the development of primary education and the reduction of per pupil costs through: (a) restructuring teacher training and teacher salary scales downward; (b) providing low-cost textbooks and teaching materials; (c) developing cost-effective methods of school construction; and (d) improving sector management through assistance to the Ministry of Basic Education and Literacy (MEBA), the Ministry of Secondary and Higher Education and Scientific Research (MESSRS), and the Ministry of Rural Cooperatives. The Fourth Education Project -Education IV- (Cr. 2244-BUR, signed on July 5, 1991, for US$24.0 million) built directly on the results of the Education III Project. The ongoing Post-primary Education Project (PPEP, ITF N0070-BUR, US$26.0 million, effective since October 1997) assists the Government through: (a) the promotion of cost-effective and equitable use of public education resources; and (b) increased access to, and quality of, education through: (i) construction of and provision of equipment for Colleges d'enseignment general (CEGs), (ii) reform and improvement in pre-service and in-service teacher training, (iii) greater availability of textbooks and pedagogic materials, and (iv) improvement of existing secondary education programs. The Project also aims at improving MESSR's capacity to manage and plan secondary and higher education and scientific research and to coordinate ongoing education projects in Burkina Faso. II. PROJECT OBJECTIVES A. Original Project Objectives 5. The main objectives of the Education IV Project were to assist the Government in further improving the quality of primary education and increasing the enrollment ratio from 31 percent in 1989/90 to 40 percent by 1996/97; improving the quality of general secondary education; and strengthening key sectoral institutions. Given the promising 3 progress made during the implementation of Education III, which laid the foundation for formal primary education, it was necessary to improve resource allocation and utilization in order to increase access to primary education. B. Project Description and Components 6. The project's first component aimed at improving the quality of and increasing access to primary education by: (a) upgrading teaching in schools; (b) increasing the availability of high-quality textbooks and teaching materials; (c) increasing the number of primary school classrooms; (d) improving students' health and nutritional status; and (e) promoting girls' participation in education. The second component aimed at improving the quality of general secondary education by: (a) upgrading teachers' skills; and (b) increasing the availability of low-cost textbooks and teaching materials. The third component aimed at strengthening key sectoral institutions by providing support to the MEBA and MESSRS to further strengthen their capacity for policy formulation and implementation and to improve their operational efficiency. 7. The project included key policy measures to improve the allocation of and increase efficiency in the use of sector resources by increasing budgetary expenditures for primary education; to increase efficiency in the use of primary school teachers and classrooms; and to reduce secondary and higher education student subsidies. It also included measures to promote private initiatives in the provision of education through incentives for establishing and operating private and community schools. C. Credit Covenants and Special Agreements 8. Covenants and special agreements were developed to assist the project in reaching its objectives (Table 9). The following conditions of credit effectiveness were agreed upon: (a) submission to IDA, for its review and comments, of two studies concerning, respectively, the establishment and operation of primary schools and secondary schools by individuals, private groups, and communities, and the proposed liberalization of fees charged by such schools; (b) raising the ceiling applicable to such fees by no less than 10 percent as of the 1991/92 school year; (c) establishment of an accounting system in the Project Directorate adapted to meet the specific requirements of the project and selection of an independent auditor, acceptable to IDA, for the auditing of project accounts; and (d) submission of a plan, acceptable to IDA, for the introduction, effective as of the 1991/92 school year, of a book rental scheme for primary schools, which would include provisions for: (i) the purchase and rental of textbooks; (ii) the continued operation of a Textbook Fund to ensure a continuous supply of textbooks; and (iii) measures to supplement the resources of the Textbook Fund, through appropriate budgetary allocations, in accordance with paragraph 6 (b) of Schedule 5 to the Development Credit Agreement (DCA). 9. All the above conditions of credit effectiveness were complied with by the Borrower to the satisfaction of the World Bank, and the Credit was declared effective on January 3, 1992. 4 10. Modifications and amendments. The DCA was amended twice. The first amendment was made on August 28, 1995, following the project's Mid-term Review (MTR). It allowed the involvement of small and medium enterprises to construct classrooms, an increase in the amount of the authorized allocation for the purpose of the Special Account (from US$600,000 to US$1,200,000), and the reallocation of credit funds (from categories 5-Pedagogical materials, 7-Training, and Unallocated, to categories 1-Civil works, 2-Construction of classrooms and 3-Grants for rehabilitation). The second amendment was made on March 10, 1998, to provide for community participation as one of the acceptable procurement procedures. The project closing date, initially June 30, 1998, was extended for a period of 6 months, to December 31, 1998, following a request from the Government to extend the closing date of categories 6 (Specialist service) and 8 (Operating costs) to enable the Government to support the preparation of its contribution to the ICR and facilitate the preparation of its Basic Education Ten-Year Program. D. Risks 11. The Staff Appraisal Report (SAR) identified two main risks. The first risk was the possible difficulties faced by the Government to increase budgetary allocations for primary education and to reduce student subsidies. This risk was mitigated by the Government's consensus-building approach toward policy changes, widespread support for increasing allocations for primary education, and the already reduced number of scholarships in higher education at the time of project appraisal. The second risk identified concerned the ability of communities to contribute the required 10 percent of school construction costs in cash or in kind. E. Evaluation of Project Objectives 12. Overall, the project was successful in broadly achieving its objectives. The Government drew from the experience gained through former projects. After choosing the mechanism of nonformal, rural training to provide education in the 1980s, the Government came to realize that this alternative system was not replicable on a large scale due to its unit costs of about US$143 per trainee, versus US$38 in primary education. Therefore, the Government decided to provide education through formal primary education under the Education III project, which was the first project with this focus. Primary school enrollment, which was 5 percent in 1960 and 15 percent in 1980, reached 31 percent in 1989/1990. Based on these encouraging results, and given the financial constraints and inefficiencies that inhibited orderly and sustained development of the education sector, the Government developed specific reform measures aimed at increasing resources for primary education and improving effectiveness in the use of those resources, limiting expenditures for student subsidies in secondary and higher education, and promoting private provision of education. The strategy for further improvements and expansion of education was firmed up following discussions based on sector analysis and investment priorities among the Government, IDA, and other donors. 5 III. IMPLEMENTATION EXPERIENCE AND RESULTS A. Assessment of Project's Success and Sustainability 13. Improving the quality of primary and secondary education and access to primary education. Upgrading teaching skills. The project also supported reforms to improve the quality of education. A total of 1,700 existing teachers (of which 250 came from private schools) and more than 5,000 new auxiliary teachers (IA) were trained, resulting in 80 percent of the primary school teaching force receiving pre-service or in- service training. Training activities improved the proportion of qualified teachers: 54.5 percent in rural areas and 80.8 percent in urban areas, compared with 18.6 percent nationally in 1990/91. To improve the management at the school level, 1,200 school directors and 500 pedagogic advisors, inspectors, and administrative staff were trained. More than 2,000 secondary school teachers were trained in six basic subjects in order to upgrade their teaching skills. It was, however, determined that large and centralized regrouping was costly and ineffective for in-service training. Therefore, GAP (Groupes d'Animations Pedagogiques) were created to conduct decentralized in-service training for primary school teachers in a network of closely located schools. GAPs were provided with 300 pedagogic kits and with professional books. In-service training for secondary education teachers was provided through mobile training teams, who visited the field and emphasized scientific and mathematics teaching skills. 14. Improving students' health and nutritional status and promoting girls' education. The project financed pre-service and in-service training that included modules on health and nutrition, environment, and promotion of girls' education. Health and nutrition topics were also added to new textbooks. Micronutrients and de-worming tablets, 2,272 first aid kits, and health cards were distributed to primary school students in 15 provinces. Furthermore, all new construction included latrines. 15. Increasing the number of primary school classrooms. The initial quantitative targets of the project -building 1,200 classrooms and rehabilitating 300 classrooms- were exceeded: 1,829 classrooms were constructed and 591 rehabilitated. Nevertheless, the strategy calling for grants for local community labor costs was not implemented because of its complexity. The main constraint was the capacity of local organizations to participate in monetary terms given Burkina Faso's level of poverty. In addition, local communities questioned the rationale of cost-sharing when other donors intervening in the same zone were not requesting financial participation. At MTR, it was decided to implement the civil works program through: (a) delegation of the responsibility for management and implementation of civil works to Faso Baara; (b) use of private engineering consulting firms (martrise d'oeuvre dc'leguee); and (c) community participation through a classroom normalization strategy. This strategy allowed the construction of 1,829 new classrooms (including 785 classrooms executed through the local community approach), the rehabilitation of 591 classrooms, and the construction of 6 546 teachers' residences. Cost savings were achieved through the construction of smaller buildings, a reduced number of teachers' residences in favor of transfer to local communities, the types of intervention (mostly delegation of responsibility for management and implementation of civil works, as well as the use of small enterprises and local jobbers), and the involvement of local communities from the planning stage to the completion of the construction. However, the quality of some classrooms and housing built is uncertain. A technical evaluation of the construction program under this project is recommended to determine the different types of interventions, costs, and timeframes to be recommended for future operations. Finally, the maintenance guide for construction to be distributed to the Parents' Associations (APE) was not developed. To date, maintenance depends on APE's initiative. 16. Increasing the availability of books and teachers' manuals. The project succeeded in the areas of textbook development, production, distribution, and capacity building in book publishing. In primary education, the project produced and distributed about 4.5 million textbooks and 114,000 teachers' guides, far more than the 1.4 million textbooks and 60,000 teachers' guides planned at appraisal. The use of private authors selected through national competitive bidding contributed to a reduction of the average manuscript writing time from 12 to 6 months. Private publishers selected through international competitive bidding transformed the manuscripts into finished books. This approach helped complete the publishing program ahead of schedule, reduce the cost of textbooks by about 63 percent, and provide schools with better quality textbooks. The project started implementing a textbook rental scheme in a few schools. However, the scheme did not function as expected because many students, mainly in rural areas, could not pay the rental fees. To improve access to textbooks, following the MTR, books were loaned free of charge to students in schools implementing efficiency measures (double-shift and multigrade teaching) and to girls in areas where the proportion of female students was less than 10 percent. Proceeds from textbooks sold to students who could afford to buy them were deposited into the Primary Textbook Fund. An amount equal to 5.35 percent of the recurrent budget for primary education for teaching materials and textbooks was also deposited into the Primary Textbook Fund. At the end of the project, its balance was near CFAF 1.2 million. The project also contributed to developing capacity in textbook development, procurement, production, and distribution in MEBA's Pedagogic Institute (IPB) and Directorate for Administration and Financial Affairs (DAAF). About 233,000 books were purchased and distributed to lower secondary schools. Books were rented to students for CFAF 500 per book. Rental fees, supplemented by an annual CFAF 3 million in Government subsidies, were deposited into the Lower Secondary Textbook Fund. 17. The project has substantially met its goals of increasing access to primary education and improving the quality of primary and secondary education. The overall primary school gross enrollment ratio reached 41 percent in 1997/98: 48 percent for boys and 33.4 percent for girls. The overall share of girls increased from 37 percent in 1990/91 to 40 percent in 1997/98. However, this masks a tremendous effort within the public school system, where Burkina Faso has developed a clear strategy for promotion 7 of girls' education. The share of girls increased from 31 percent to 39 percent in the public school system during this time period, compared with a stagnant 42 percent in private school systems. Total enrollment increased from 472,979 students in 1988/89 to 777,691 in 1997/98, an average rate of increase of 6.4 percent per year. The total enrollment of girls increased from 179,646 to 310,496, representing a rate of increase of 7.1 percent, compared with 6.0 percent for boys. The combined system of double-shift and multigrade teaching contributed to enroll approximately 80,000 additional children, who would not otherwise have had a chance to attend school. In 1985, out of a cohort of 1,000 students, only 690 completed primary school, compared with 800 students in 1997. Within the same time frame, the number of student years funded to produce a primary school graduate was reduced from 26 to 12 years, while the success rate in the Primary School Certificate (CEP) exam rose from 24 percent to 53 percent. The repetition rate decreased from 17 percent in 1990/91 to 14 percent in 1997/98. 18. Strengthening key sectoral institutions on policy formulation and implementation and improving operational efficiency. The project supported training of staff in: (a) personnel management and budget preparation and control; (b) data collection and analysis; and (c) educational policy. Regarding educational planning, the support given by the project and the French Cooperation allowed for increased capacity in data collection and analysis and in the development of school mapping. The support provided by the European Union and the project improved the budget preparation system and led to budgeting by objectives. Capacity improvement in policy analysis is reflected in the development of a draft Basic Education Ten-Year Program by the Ministry of Basic Education and Literacy. However, MEBA's capacity needs to be further increased and adjusted, given the large number of civil servants employed in the education sector and the ongoing decentralization process in the country. 19. Key policy measures. The average annual rate of increase of the Government budget devoted to primary education was 9.5 percent from 1991 to 1997, compared with 8.4 percent for post-primary education, which includes lower and upper secondary schools, technical and vocational training, and tertiary education. The rate of increase for the education sector as a whole was 9 percent. From 1995 to 1999, MEBA's budget increased by about 1.3 percent, compared with an increase of 1.2 percent for the Government budget; internal allocations of the budget were more efficient. The proportion of MEBA's budget devoted to salaries decreased from 84.7 percent in 1995 to 69.7 percent in 1999 due to efficiency measures. During the same period, the share of other categories increased: (a) materials and equipment from 5.5 percent to 10 percent; (b) transfers from 5.6 percent to 8.8 percent, due to the opening of new Teachers' Training Colleges; and (c) investments from 4.2 percent to 11.5 percent. On average, 950 new teachers were hired each year through the Government budget and 1,500 national voluntary service teachers who had no training and commitment to the profession were replaced. This provision of new teachers demonstrates the priority given to primary education. This effort helped erase the deficit in teachers observed in early 1990, and lay the foundation for primary school development. It also helped reduce the student/teacher ratio from 57 to 47. 8 20. Total student social subsidies in secondary and higher education decreased from CFAF 4.8 billion to CFAF 3.1 billion. The project's efficiency measures continue to be satisfactorily implemented: (a) the proportion of higher education students with scholarships decreased from 97 percent in 1988/89 (when total enrollment was 5,300 students) to 36 percent in 1998 (with a total enrollment of 12,000 students), and higher education scholarships awarded were limited to 500 per year, with priority given to female students enrolled in scientific fields; (b) 60 percent of university dormitory places were allocated to female students; and (c) secondary school scholarships were progressively eliminated -the total number of scholarships awarded to secondary school students decreased from 22,750 to 6,303 - and only girls from the ten provinces with the lowest enrollment rates were eligible for the remaining scholarships. Burkina Faso has made progress in increasing cost-recovery: (a) university fees range from CFAF 7,500 to CFAF 11,000 (depending on the field of study) for regular students and CFAF 25,000 for student workers, compared with an average CFAF 5,000 in most countries in the sub- region; (b) secondary school students pay a registration fee of CFAF 5,000, and 75 percent of these fees are held by schools for pedagogical inputs; and (c) the Centre National des Oeuvres Universitaires and the management of university restaurants were transferred to the Ministry of Higher Education and to a private operator respectively, leaving the university free to focus on academic matters. To increase the efficiency in the use of primary school teachers and classrooms, multigrade teaching was introduced in 1,847 classrooms and double-shift teaching in 950 classrooms (compared with the project's target of 840 and 590 classrooms, respectively). These efficiency measures helped increase total enrollment by 23 percent. 21. To promote private initiatives in the provision of education, incentive measures were implemented: deregulation of fees, easy access to land for school construction, and provision of teachers' in-service training. As a result, enrollment in private schools rose from 43,629 students in 1991/92 to 89,017 students in 1997/98. 22. Sustainability. During project implementation, four factors contributing to sustainability of the development of primary education were taken into account: (a) budget reallocation in favor of primary education; (b) more efficient resource use; (c) increased community participation; and (d) the capacity to produce low-cost textbooks and construct low-cost classrooms. The adjustment measures that affected teachers and students (double-shift teaching and reduction of students' social subsidies) have matured and are well internalized. To strengthen the education reforms, the Government has prepared a post-primary education program supported by the PPEP (ITF 007-BUR) and is finalizing a Basic Education Ten-Year Program. Traditionally, ministries of education have had a relatively weak bargaining position vis a vis ministries of finance. The integration of education issues in the Country Assistance Strategy (CAS), along with the macroeconomic dialogue and the PER and HIPC conditionalities on the share of budget going to education, will secure the sector. Thus, the project's sustainability can be rated as "likely." However, given the level of poverty in Burkina Faso, external financing and assistance will be critical to support the Government in further sustaining the results 9 achieved and providing quality education for the majority of Burkinabe. Good donor coordination will also facilitate a more efficient allocation of external resources. B. Summary of Project Costs 23. The total cost of the project (see Table 7A) was estimated at appraisal at US$46.4 million equivalent (net of taxes and duties) with a foreign exchange component of US$32.0 million equivalent (69 percent). Base cost estimates were in April 1991 dollars. Due to the modification of the originally planned construction implementation strategy, it was decided to implement the civil works program through: (a) the delegation of responsibility for management and implementation of civil works to Faso Baara (the executing management agency); (b) the use of private engineering consulting firms; and (c) community participation through a classroom normalization strategy (para. 15). As a result, construction expenditures, as well as activities financed by the Belgian grant, were in local currency. Thus, the actual foreign exchange component amounts to only US$4.8 million equivalent (12 percent of total project costs) compared with US$34.8 million equivalent (88 percent of total project costs) for local costs, for a total project cost of US$39.6 million equivalent. The breakdown of the project costs in local and foreign currencies is given in Tables 7A, 7B, and 7C. C. Summary of Financing Arrangements 24. Total project expenditures amount to US$39.4 million, of which IDA contributed 66 percent; the Kingdom of Norway, 9 percent; the European Union (EEC), 9 percent; the Kingdom of Belgium, 15 percent; local participation, 1 percent; and the Government, 1 percent. These figures compare with the financing percentages established at the time of Board Presentation: IDA, 52 percent; Kingdom of Norway, 8 percent; EEC, 16 percent; Canadian International Development Agency (CIDA), 19 percent; local participation, 4 percent; and Government, 2 percent. 25. The grant from the Kingdom of Norway (US$3.8 million equivalent, signed on September 24, 1991) financed textbooks for primary schools as well as health and first aid supplies. The EEC (US$7.3 million equivalent) financed budgetary aid in the context of the adjustment program for teachers' training, as well as implementation of double- shift teaching and strengthening of the management capacities of the Ministry of Basic Education, instead of classroom construction as originally planned. After the MTR, a grant from the Kingdom of Belgium (US$6.6 million equivalent, signed on July 24, 1996) helped finance the construction program. At project appraisal, CIDA was to provide cofinancing in the amount of US$8.7 million equivalent, but later decided to finance other activities to improve education quality. A separate grant from the Netherlands also provided additional resources for primary school classroom construction, as well as construction, equipment, and rehabilitation of the Teachers' Training Colleges. Activities financed by both CIDA and the Netherlands were carried out directly in terms of financial management, procurement, and programming. 10 However, the components they both financed were within the description of the project as initially planned. The involvement of additional donors who were not originally expected to contribute to the project shows the success of project implementation. Actual amounts cofinanced are shown in Table 7C. 26. Total disbursements of IDA Credit at ICR preparation (UJS$26.0 million) were higher than projected at appraisal due to exchange rates changes (US$/SDR and US$/CFAF) (see Table 4); 99.8 percent of the SDR amount was disbursed. The estimated and actual disbursements are given in Tables 7A, 7B, and 7C. D. Implementation Schedule 27. Project preparation took two and one-half years. The first identification mission took place in 1988, with Board Presentation on May 21, 1991, and the signing of the DCA on July 5, 1991. The Project became effective on January 3, 1992, and closed 6 years later on December 31, 1998 (a 6-month extension of closing date was granted in June 1998). The non-disbursed balance of SDR 33,820 (UJS$ 45,100 equivalent) was canceled on June 25, 1999. A MTR took place in April 1995, confirmed that the objectives remained current and consistent, and refocused several activities. Key actions following the MTR included: (a) minor reallocations of credit funds; (b) minor amendments to the DCA to reflect the changes in the classroom construction program strategy; and (c) an amendment to the procurement arrangements to facilitate annual reprinting of textbooks. E. Analysis of Key Factors Affecting Project Implementation 28. At appraisal, there were at least two key issues deemed essential for reaching the project's objectives. The first was increasing budgetary allocations for primary education and reducing student subsidies. These were difficult and risky objectives to achieve given the lack of commitment at the level of the Ministry of Finance and within the educational establishment. To overcome the allocation issue, wide-ranging consultations were organized, leading to strong support for primary education by all concerned ministries and by the donor community. In addition, these measures were included as conditions of release of the second and third tranches of the first SAC. The project's annual reviews and public expenditure reviews (PERs) exercise helped monitor the implementation of these measures. The second issue was the ability of communities to effectively contribute the required 10 percent of school construction costs in cash or in kind: this was a challenge given the financial burden that it would place on the rural populations. To facilitate implementation of the second issue, the project started with the pilot program conducted during Education III. Implementation faced several difficulties: (a) the variety of classroom-delivery approaches among donors led communities to question the rationale for having to contribute to classroom construction under the IDA project when other donor-supported schemes did not require cost-sharing; and (b) given the high incidence of poverty (45 percent of the population in 1995), cumulative cost-sharing in various activities (health, agriculture, education, etc.) constituted an obstacle to sustained 11 financial contributions from communities. It was decided during the MTR to rely on small, local contractors, following a selection process involving local communities. The issue was addressed to both the Bank's and the Government's satisfaction. F. Assessment of the Bank's and Borrower's Performance 29. The Bank's performance was, overall, satisfactory during project identification and preparation. The risks were correctly identified. However, a sound monitoring and evaluation system should have been established to assess project outcomes during implementation. This will be reflected in the next operation. Project implementation started in an uncertain environment that was further complicated by the high turnover of local counterparts. Under these circumstances, the Bank's supervision was effective. Adequate efforts were made to preserve continuity in task management. The Bank also demonstrated understanding and flexibility with regard to the changes that the country experienced. Disbursement percentages for certain expenditure categories were increased (DCA amendment dated November 14, 1995) and the closing date was extended. The delegation of Task Management responsibility to the Resident Mission in 1997, and the strengthening of the Resident Mission's capacity in terms of procurement matters, also contributed to improving communications and information exchanges between the Bank and the local project team. Furthermore, the project's MTR was the catalyst for donor coordination, which culminated in the current sound dialogue among donors and between donors and the Government. 30. The Borrower's performance was satisfactory during the project preparation phase, but deficient during project start-up, due to the factors identified in Section E above. The subsequent turnover of key civil servants required some adjustment during project implementation. After this adjustment, there was continuity in the project team and key staff of the ministry, which helped to substantially improve project execution and led to a satisfactory implementation at project closing. G. Assessment of Project's Outcome 31. The Education IV Project can be classified as satisfactory in its effort to expand formal primary education and mobilize more resources for primary education. The 40 percent gross enrollment ratio (GER) target was reached. This is an important achievement given that, at independence in 1960, Burkina Faso had a GER of 5 percent and, in 1985, a GER of 23 percent. An innovative pilot program that developed and successfully extended approaches for increasing girls' enrollment was implemented. The project had a positive impact on public policy, infrastructure, and institutional development. The Government completely reoriented its primary education system through the project, focusing on the six years of formal primary education. The previous system offered rural youth training that was not sustainable because of high unit costs and the perception that it provided a second-class education. The infusion of resources dramatically improved the quality of basic infrastructure, teacher training, and textbook 12 development. The project helped substantially strengthen the capacity of MEBA in procurement, accounting procedures, and other administrative, financial, and planning activities. Because of its strong achievements, additional donors (Belgium and the Netherlands) decided to cofinance the project during the MTR. The project made considerable progress in helping the Borrower achieve major efficiency gains by: (a) reducing the cost of textbooks and classrooms construction; (b) reducing students' social subsidies and utilizing teachers and classrooms more efficiently; and (c) laying the foundation for better quality education. IV. SUMMARY OF FINDINGS, FUTURE OPERATIONS, AND KEY LESSONS LEARNED A. Important Findings of Project Implementation Experience 32. For the most part, execution of this project and disbursements were on schedule throughout the life of the project, and covenants were in compliance. Disbursement procedures were regularly followed, resulting in no rejections from the Bank and unqualified comments from the auditors. Further, regular supervisions took place. Changes in task management responsibilities did not have any negative impact. However, the opportunity cost of education remains high for poor families, and this is an important impediment constraining a more dynamic demand for education among Burkinabe households. Based on the results of the Enquete Prioritaire, the single most important reason for not sending children to school is the high cost of schooling (24 percent of children not attending school), followed by parents' refusal to send their children to school (22 percent), the absence of a school or its location (15 percent), and the perception of schooling as being completely useless (11 percent). Addressing demand-side issues is therefore an important factor to overcome resistance to schooling. B. Future Operations and Sustainability 33. Future operations will be developed in accordance with the Country Assistance Strategy (CAS) under preparation, which will focus on long-term human capital development for faster improvements in social sectors. The country's low level of human capital adversely affects the economic returns to investment in all sectors, and its long- term growth prospects are seriously limited by the population's low educational attainment and skill levels. Future operations that will derive from the new CAS would be based on sector-wide approaches. The ongoing Post-primary Education Project (PEPP -Cr. ITF 007-BUR) builds directly on, and seeks to further, the positive results of the Education IV Project. The PEPP (secondary and tertiary education, technical and vocational training) currently under implementation aims to: (a) restructure the sector to use resources more efficiently; (b) increase the participation of the private sector in secondary education to free up resources for the expansion of public primary education; 13 (c) improve quality and efficiency; and (d) define a national policy for technical education and vocational training. At the basic education level, the decision to rank primary education as a national priority will be upheld and consolidated. The enrollment effort will be pursued and intensified in order to reach an enrollment rate of 70 percent and an adult literacy rate of 40 percent by the year 2010, as well as to improve the quality and efficiency of education. C. Lessons for Future Projects in the Sector in Burkina Faso 34. Although the project met its goals, the following lessons should be taken into account for future operations: (a) The Government should, at an early stage, develop a comprehensive policy framework for an effective intervention of all donors in the sub- sector. This lesson will be reflected in the Government's Basic Education Ten-Year Program, which is under preparation with the interactive participation of donors and nongovernmental organizations (NGOs) operating in the education sector. (b) To guide implementation and build momentum, reasonably detailed implementation arrangements covering the first year should be developed before the project becomes effective. This lesson is already reflected in the PPEP and will be further integrated in the first phase of the Basic Education Ten-Year Program (Education Adaptable Program Loan [APLI) under preparation. (c) Faster development of primary education is constrained by high education unit costs and inefficient resource use and allocation. To further address this issue, the Government is considering recruiting more teachers at lower salary, developing low-cost pedagogical materials, reducing grade repetition, and increasing the share of basic education in the total education budget. This lesson will be reflected in the Basic Education Ten-Year Program. (d) While the supply of education has helped increase enrollment, there are localities where the provision of a school itself is insufficient to increase access. The Government would have to develop a demand-side approach to overcome resistance to schooling prior to investment, in the context of the preparation of the Basic Education Ten-Year Program. (e) Standardized assessment of student learning should be made available. Although testing and evaluation system is integrated in the ongoing Post- primary Education Project, the Government will create an "Observatoire de l'education" as part of its future operation, which will deal with the 14 monitoring of quality and access and will identify issues at an early stage in order to provide early corrective measures. (f) For school construction programs, it would be more efficient to: (a) engage small, private, local contractors to use a kit of standard construction materials and plan for a maximum of three classrooms; and (b) delegate more responsibility to local communities to do the work themselves or contract it to local artisans or small entrepreneurs, with financial and technical assistance from the project. This lesson has already been tested following the Education IV project's MTR and will be further integrated in the future operation. (g) A technical evaluation of current construction programs is underway in order to detennine the different types of interventions, costs, and time frame to be recommended for future operations. 15 PART II: STATISTICAL TABLES Table 1: Summary of Assessments Table 2: Related Bank Credits Table 3: Project Timetable Table 4: Credit Disbursements: Cumulative Estimated and Actual Amounts Table 5A: Performance Indicators Table 5B: Key Indicators of Project Implementation Table 6: Studies Included in the Project Table 7A: Project Costs (by component) Table 7B: Project Costs (by category of expenditures) Table 7C: Project Financing Table 8: Economic Costs and Benefits Table 9: Status of Legal Covenants Table 10: Bank Resources: Staff Inputs Table 11 A: Bank Resources: Missions Table 1 IB: Bank Resources: Supervision Missions 16 TABLE 1: SUMMARY OF ASSESSMENTS A. Achievement of Objectives Substantial Partial Negligible Not Applicable Macroeconomic Policies O O Cl Sector Policies 0 0 0 a Financial Objectives E3 0 [ 0 Institutional Development Ol 0 l 0 0 Physical Objectives El O O O Poverty Reduction El 0 E 0 0 Gender Issues Ol 0 0 1El Other Social Objectives O Ol O [H Environmental Objectives Cl 0 a 0 Public Sector Management O cm E a Private Sector Development O 0 [ 0X (including nongovermmental sector) B. Project Sustainability Likely Unlikely Uncertain 0l 0 0 C. Bank Performance Satisfactory Satisfactory Deficient Identification 0 0 El Preparation Assistance Ol 03 O Appraisal al 0X a Supervision El 0 E D. Borrower Performance Satisfactory Satisfactory Deficient Preparation [O E0 E Implementation 0 E E Covenant Compliance E 0 E Highly E. Assessment of Outcome Satisfactory Satisfactory Deficient E 0 E 17 TABLE 2: RELATED BANK CREDITS Credit Title Objectives Year of Status approval Preceding Operations Cr. 430-UV The First Education Project (for an amount of US$2.8 1973 Closed equivalent), closed in November 1980, was designed to: (a) support informal sector training by providing rural youth with basic literacy and agricultural managers; and (b) strengthen the teaching of science in secondary schools. Cr.956-BUR The Second Education Project (for an amount of US$14.0 1979 Closed million equivalent), closed in August in 1986, continued support for the rural youth training program started under the first project, including in-service training for agricultural project managers and public works personnel. Cr. 1598-BUTR The Primary Education Development Project (for an amount 1985 Closed of US$21.6 million equivalent), closed on March 31, 1994, supported the development of primary education and the reduction of per pupil costs through: (a) restructuring teacher training and teacher salary scales to lower costs; (b) providing low-cost textbooks and teaching materials; (c) developing cost- effective methods of school construction; and (d) improving sector management through assistance to MEBA, MESSRS, and the Ministry of Rural Cooperatives. Following Operations ITF N0070- The ongoing Post-primary Education Project (for an amount 1997 Ongoing BUR of US$26.0 million equivalent), effective since October 16, 1997, assists the Government in the implementation of its program through: (a) the promotion of cost effective and equitable use of public education resource; and (b) the increase of access to and the quality of education through: (i) the construction of and provision of equipment for CEGs, (ii) the reform and improvement of pre-services and in-service teacher training, (iii) the increase of the availability of textbooks and pedagogic materials, and (iv) the improvement of existing education programs, at the secondary level. The Project should also improve MESSR's capacity to manage and plan secondary, higher education and scientific research, and to coordinate ongoing education projects in Burkina Faso 18 TABLE 3: PROJECT TIMETABLE Steps in Project Cycle Date Planned Actual Date/ Latest Estimate Identification n.a. 08/88 Preparation n.a. 10/89 Appraisal n.a. 07/90 Negotiations n.a. 04/91 Board Presentation n.a. 05/91 Signature n.a. 07/91 Effectiveness n.a. 01/92 Mid-term Review 09/94 04/95 Project completion n.a. 06/98 Credit closing 06/98 12/98 n.a. = not available 19 TABLE 4: CREDIT DISBURSEMENTS: CUMULATIVE ESTIMATE AND ACTUAL AMOUNTS (US$ Million) Fiscal year Appraisal estimate Actual amount Actual amount as % of estimate 1992 2.4 0.6 25 1993 6.8 0.6 9 1994 11.6 2.5 22 1995 17.6 9.5 54 1996 22.0 18.7 85 1997 23.8 23.6 99 1998 24.0 25.4 106 1999 24.0 26.0 108 n.a.: not applicable Source: Staff Appraisal Report (April 24, 1991) for the appraisal estimate and Loan database (June 27, 1999) for the actual amounts. Note: 108% of the US dollar amount was disbursed. However, because of changes in the exchange rate of various currencies used (SDR, US$, CFAF, etc.), 99.81% of the SDR amount was disbursed. 20 TABLE 5A: PERFORMANCE INDICATORS Indicators 1990/91 Objective 1997/98 Enrollment rates 31% 40% 40% (89/90) Repetition rates 17% _13% (97/98) Government budget for basic education + 8.5% in Achieved nominal terms Primary education budget allocated to the financing of 6% 5.35% pedagogical material and textbooks Teacher/student ratio 1/57 1/47 Creation of: multigrade classes 840 1,847 double-shift teaching 590 950 Rate of qualified teachers 18.57% in 54.5% rural the whole areas country 80.8% urban areas Number of students reaching CM2 level 690/1000 800/1000 (85/86) CEP success rate 24% 53% (85/86) Number of years/students spent 26 (85/86) 12 Price of textbook at the primary level 3,500 1,300 CFAF CFAF Number of students per class 59 52 Proportion of girls: in public and private schools 37% 40% in public schools 31% 39% Students in private schools 43,629 89,017 Number of scholarship recipients: secondary level 22,750 6,303 higher education 6,123 4,000 (91/92) 21 TABLE SB: KEY INDICATORS OF PROJECT IMPLEMENTATION Objective Strategy/Indicators - Fulfillment/Impact Component 1: Reinforcement of Quality for Basic Education and Enlargement of Access to this Education 1.1 Improve allocated sectoral resources Increase budget credits earmarked for Government budget for basic education: 12.65% (yearly and make sure that they are utilized more primary education by 8.5% in nominal average: 9.5%) efficiently terms Recruitment of 950 primary school Achieved. teachers per year Shortage of teachers eliminated. Allowed to replace the 1,500 primary school teachers of the Peoples National Service (SNP). 1 teacher for 47 students in 1997/98. 16,422 teachers in 1997/98 Set up a system of multigrade classes in Creation of 1,847 multigrade classrooms and of 950 about 840 classes with an average of at double-shift classrooms: enrollment of about 80,000 least 40 students per teacher. additional children - increase by about 23% of education Set up a system of double-shift classes in offered about 590 classes with one teacher for 2 Compensatory allowance of CFAF 15,000 paid monthly cohorts (55 students per cohort) by per teacher paying an adequate bonus to teachers participating to the program Creation of 12 regional pedagogical teams for a community strategy. Training of 4,184 teachers and of 588 pedagogical trainers (200% of teachers in charge of innovated classrooms) Training modules included in the National School for Primary School Teachers (ENEP) Program trimming and distribution of 2,000 copies of programs in schools involved Free availability of about 58,000 textbooks in the schools involved in the program trimming Equipment in furniture, supplies, and school materials. Organize an information campaign in Information campaigns organized in practically all 1991/92 on multigrade and double-shift provinces classrooms 22 Objective | Strategy/Indicators Fulfillment/Impact Component 1. Improvement of Teaching Quality 1.2 Improvement of teachers' Upgrading of skills for approximately Training of more than 5,000 new teachers competencies 4,000 untrained teachers Training of 1,200 current teachers (out of which 250 were private schools teachers) 80% of current teachers benefited from initial or continued training Orientation of approximately 1,100 SNP Training done. Thanks to the hiring of 950 new teachers teachers per year per year, teachers of the Peoples National Service (SNP) could be replaced. Development of training guidelines for auxiliary teachers (IA), tenured teachers (IP), CPI, Directorate of the State Pedagogical Institute (IEPD) personnel and for the National School of Primary School Teachers (ENEP). Training and awareness campaign for civil servants of the Ministry of Basic Education and Literacy (MEBA) regarding implementation of guidelines Done by CIDA: Training to identify the needs for upgrading the skills of school directors, setting up development programs, and organizing continued learning sessions - ongoing partnership with the University of Quebec in Montreal 1.3 Reinforced school management and Training of approximately 3,000 Training of 1,200 school directors, increased training of inspection directors and approximately 200 500 pedagogical trainers, and primary school inspectors and pedagogical counselors in inspectorates equipped with logistical and operational the areas of school management, instruments teaching methods, monitoring of students' learning, and supervision of teachers Training periods abroad for 12 trainer-of-trainers Creation of GAP brought training closer to working sites of teachers and worked toward decentralization. GAP equipped with 300 pedagogical kits. 23 Objective Strategy/Indicators Fulfillment/Impact Material, furniture, and vehicles Rehabilitation of buildings in 31 DPEBA to shelter equipped resource centers. Supply of books and pedagogical manuals. One hundred motorcycles for the Pedagogical Institutes (IP) and CPI to more closely manage teachers in the field 1.4 Improvement of the evaluation and Institution of normalized tests during the Not achieved examination system for students third year of study to evaluate and compare the results of students and to identify non-performing schools prior to the sixth year of study Modification of the CEP concept Developed action plan: launch of the separation of CEP and the admission exam to secondary school, implement legislative texts, define subjects and provide them with a code, inform and sensitize partners, train trainers, develop evaluation instruments, set up a computer management plan to ensure that the DEC is equipped with appropriate materials Analysis of data and wording of Set up of a program and appropriate software to improve recommendations by the DEC and of the and accelerate the processing of files related to exams Directorate for Studies Related to and competitive entrance exams, consultants' services, Planning and Programming (DEPP) of and training of DEC personnel the Ministry of Basic Education and Literacy (MEBA) Files related to exams and competitive entrance exams processed in a timely fashion. Availability in the system of teachers based on needs expressed at the start of the school year in compliance with the date set up for the new school year 1.5 Increased availability of textbooks Textbooks more affordable to parents Average price of a book reduced by 63% between and of pedagogical material 1990/91 and 1997/98 (from CFAF 3,500 to CFAF 1,300) Creation of a publication commission to Publication commission created, but did not function. provide advice and coordinate activities Therefore, subject panels were created to vet out related to the distribution of textbooks manuscripts submitted by private authors Elaboration of 24 titles 24 titles were written by private authors selected through NCB 24 Objective Strategy/Indicators Fulfillment/Impact Integration of the promotion of girls' Achieved enrollment and of nutritional, health, and environmental education in textbooks and pedagogical material Financing of the production and About 4.5 million textbooks and 1 14,000 teachers distribution of about 1.4 million manuals were produced and distributed textbooks and 60,000 teachers' manuals Reinforcement and improvement of the Set up of a stock management system planning and distribution system Training of 91 central and regional managers Reinforced capacity of the central warehouse Installation and equipment of 3 regional warehouses Establishment of a textbook rental Rental scheme experimented in a few schools, but did not scheme in schools to improve access to function; however, the cost of books dropped and many textbooks more parents were able to buy books. In addition, because of inability of parents to pay rental fees, decision during MTR to rent textbooks for free to students of multigrade or double-shift classes, as well as to girls in areas where female enrollment rate is lower than 10% Payment to the Fund of rental fees for The rental system did not function (see above). textbooks in order to replenish supply Proceeds from textbooks sale supplemented by 5.5% of the recurrent budget for primary education were deposited into the Textbook Fund for textbook stock renewal Purchase of pedagogical, nutritional, and Achieved with CATWEL health materials prepared by DESA and UNICEF Training of DES personnel in the writing Training of DES and of Directorate for Administrative and publishing of manuals/quality and Financial Affairs (DAAF) personnel in the control development of manuscripts, production management, monitoring of pedagogical quality, procedures regarding the procurement of existing textbooks and stock management Reinforcement of the Directorate for Training of managers, accounting system, equipment, Administrative and Financial Affairs material and logistics (DAAF) (training and logistical support) to monitor the rental system and to 25 Objective Strategy/Indicators Fulfillment/Impact perform an audit Allocate at least 6% of primary Only textbooks under external financing education budget to the financing of Allocated to pedagogical material: 2.82% in 1996, 4.23% pedagogical material and of textbooks in 1997, 5.35% in 1998, 1.80% in 1999 1.6 Increased number of classrooms Construction and equipment of 1,200 Increase by 75% of school properties classrooms and rehabilitation of 300 945 new classrooms being constructed classrooms 591 rehabilitated classrooms, 785 normalized classrooms, 52 students per class in 1997/98 Improved techniques at the community Strategy changed at MTR given the difficulty of level regarding the construction and implementation management of schools by: (a) the reinforcement of the Provincial Directorates of the Ministry of Basic Education and Literary (DPEBAM) in their consultative and monitoring functions; (b) selection of contractors and local craftsmen who have sufficient experience and materials; (c) distribution of standardized and low-cost construction plans; and (d) measures meant to make communities more capable to construct schools and to carry out maintenance 1.7 Improved health and nutritional Training of teachers and inclusion of Achieved status of students information in textbooks Building of wells and sanitary Only latrines were included in the construction installations in newly constructed schools Distribution of vitamin A & iodine Achieved with delay in 15 provinces capsules twice a year, and of vermifuge three times a year Creation of an interministerial committee An interministerial committee was not created to plan the purchase, storage, and Letter of understanding signed with CATWEL, which is distribution of nutritive microelements in charge of ordering, distributing, and monitoring the and to advise on the finalization of operations pedagogical material I_I 26 Objective Strategy/Indicators Fulfillment/Impact Distribution of first aid kits in schools Ongoing distribution of 2,272 first aid kits and health record booklets 1.8 Promotion of girls enrolled in Training of teachers and inclusion of Achieved schools information in textbooks Studies on the obstacles preventing the Implementation of a national plan to increase enrollment enrollment of girls in schools and of girls in schools; this plan was translated into 4 national proposed solutions languages and was widely disseminated Thanks to a workshop to set up a nonformal training program for girls and women, specific needs were identified and literacy documents (translated into 4 national languages) developed SPEF being transformed into a Directorate Supply of logistical means of training to SPEF personnel. Creation of AME and equipment of those AME to enable them to create income-generating activities Seminar to reflect on the promotion of women through the media Since the MTR, free rental of textbooks to girls in the areas where female enrollment rate is lower than 10%; distribution of 5,196 textbooks in 110 schools 1.9 Promotion of private initiative in Liberalization of school enrollment fees Liberalized school enrollment fees education Starting in 1991/92, raising of the Number of students in private schools: 89,017 in 1997/98 ceilings applicable to paid rights by at least 10%. Ensure private system access to the Retraining of 250 teachers, opening of structures and training of teachers, textbooks and services related to pre-service and in-service training, and pedagogical material, and inspectorate to private inspectorate and managerial staff services Incitement to open new schools through easy access to bank credits and land-related grants Establishing opening and operating criteria for private schools; closing of schools facilities that do not respond to quality and security standards Creation within the Ministry of Basic Education and 27 Objective Strategy/Indicators Fulfillment/Impact Literacy (MEBA) of the Directorate for Private Basic Education (DEBP) toward the promotion and research of strategies aimed at energizing this sector Component 2: Improved Quality of the General Secondary Education 2.1 Improved competencies for Supply of equipment and materials Supply of audio-visual equipment to allow for the teachers and school inspectors necessary during the pre-employment installation of a studio training of the National Institute for Statistics and Employment (INSE) Training of INSE personnel in the Not achieved preparation of audiovisual materials used for training Organization of on-the-job pedagogical Retraining of over 5,000 teachers (all subjects, including training of approximately 2,000 teachers 930 mathematics teachers) (3 seminars between 1992 and 1996) on teaching methods and on main subjects of the secondary curriculum, integration of education with nutrition, health and population, and monitoring of the knowledge acquired by students Training of 29 inspectors Training abroad of 6 inspectors Logistical support to increase the Purchase of vehicles, office equipment, gasoline and frequency of visits to schools and to operating materials facilitate teachers' training 2.2 Improved availability of low-cost textbooks and pedagogical material Purchase and distribution of about Establishment of the list of titles, About 233,000 books purchased and distributed to 228,000 lower secondary books purchase, and distribution of the books schools to the schools Establishment and operation of a textbook Distribution of textbooks to students Rental scheme functioned in 60 lower secondary schools loan scheme through a rental system Rehabilitation of 60 libraries and training of 60 librarians Set up of a textbook fund to re-supply Development and distribution of a guide for textbook textbooks provided under the project stock management A revolving fund for the re-supply of Rental fees collected and deposited into Textbooks rent to students for CFAF 500 per book textbooks the revolving fund Rental fees and annual CFAF 30 million deposited into a Lower Secondary Textbook Fund 28 Objective Strategy/Indicators Fulfillment/Impact Component 3: Reinforcement of Key Sectoral Institutions 3.1 Development of planning and Training of the Directorate of Studies on Logistical support toward the elaboration and the management tools at MEBA Planning (DEP) staff on the economic implementation of mapping and of school statistics Reinforcement of DEP to analyze and aspects of education in relation to the Installation of offices at DEP and at the Bureau of publish data related to education and to elaboration of a development policy and Education Projects (BPE) define and implement general policy of continued training in the field of Studies on: school mapping, primary school statistics, measures (in particular in the area of statistics related to education and the pedagogical innovations resource utilization and of teaching establishment of school mapping Symposia on private education and basic education quality) Personnel and logistical support made Think-tank days on the expansion of basic education available Training of the heads of the DPEBA Studies and Planning Services Training of 2 agents in education planning Workshops on school mapping to help SEP Workshops on school statistics to help SEP Training of 2 agents in documentation and record management Study tours and exchanges of experiences Improvement of budget and administrative procedures of MEBA as well as of the system related to data collection, analysis, and dissemination of information on personnel budget and on students between different departments 3.2 Development of tools for planning Improved management system at the Computer guidelines for scholarship management at the and management of the Ministry for Directorate for Scholarship Orientation secondary and higher education levels Secondary and Higher Education and (DOB) and at the university Scientific Research (MESSRS) Studies on strategies to develop post- Logistical support to improve pilot capacities primary education and training Seminars for regional directors and public and private school directors Study tours Training of 2 managers in economics and education planning Training of 3 agents in school statistics At the University of Ouagadougou: Purchase of 2,000 books and 70 periodicals to reinforce 29 Objective Strategy/Indicators Fulfillment/Impact the university library and the necessary filing material Training of secretaries and laboratory technicians Study tours on scholarship management, rental systems to students, involvement of the private sector in the management of university operations, Virtual University 3.3 Support to the Directorate of the Rehabilitation of existing building Achieved Education Project Training, material, vehicles, consultant Achieved services, salaries, recurrent costs Set up of an electronic system for follow-up training on software usage 30 TABLE 6: STUDIES INCLUDED IN THE PROJECT Year Study Objectives Status Impact of the study 1998 Assessment of MEBA institutional, Improve management and planning capacities of the Completed Preparation of the BETYP organizational and management capacities education system l 1998 Study on quality of Basic Education in Improve quality of basic education Completed Preparation of the BETYP Burkina Faso l 1998 Assessment of economic, social, pedagogic Measure the impact of the Education IV Project on Completed Preparation of the BETYP and technical impact of the Education IV the beneficiaries and on the management of the Project education system 1997 Study on girls' education and adult literacy Improve females' education and literacy Comnpleted Preparation of the BETYP 1997 Reasons for girls low enrollment Identify causes; elaborate and implement an action Completed MEBA is now implementing an plan action plan on girls' education. A Ministry of Promotion de la Femme has been created. Girls' enrollment in schools has notably increased. 1996 Study on higher education Completed 1995 Study on the assessment and examination Elaborate a strategy to separate CEP examination Completed Separation ongoing system from the examination for entry to secondary school 1994 Accelerating Basic Education Identify strategies for faster development of basic Ongoing 1995 education in Burkina Faso 1995 Seminar on Private Education Identify strategies for faster development of private Competed Report transmitted to MESSRS schools in Burkina Faso that are better integrated in the education system l 1994 Study on technical and vocational education Establish diagnosis of the situation Completed Report transmitted to MESSRS 1993 Study on schools statistics Improve the content and production and reduce Completed Statistics reports are timely. publishing delays of MEBA data reports. Quality has improved. 1993 Study on secondary education Establish a diagnosis and elaborate a development Completed action plan 1992 Study on primary schools mapping Set up a school mapping Completed MEBA now has management and planning tools 1992 Study on pedagogic innovations Identify implementation conditions for multigrade and Completed 1,847 multigrade classrooms and double-shift teaching 950 double-shift classrooms are operating. 1992 Seminar on higher education Identify strategies for development of higher Completed Report transmitted to MESSRS education more suitable to country's needs 31 TABLE 7A: PROJECT COSTS (BY COMPONENT) (US$ Million) Component Appraisal Estimate Actual Costs Local Foreign % Local Foreign % Costs Currency Total Costs Currency Total 1. Improving the quality of and 10.2 18.5 28.7 62 33.4 2.6 36.0 91 increasing access to primary education 1.1 Upgrading the quality of 3.4 0.8 4.2 11.2 0.1 11.2 teachers 1.2 Increasing the availability of 1.1 4.8 5.9 1.1 2.5 3.6 textbooks and teaching materials 1.3 Increasing the number of 5.7 12.2 17.9 20.5 0.00 20.5 classrooms 1.4 lmproving students' health and 0.0 0.5 0.5 0.7 0.00 0.7 nutritional status I__ 1.5 Promoting female participation 0.0 0.2 0.2 0.04 0.00 0.04 in education 2. Improving the quality of 0.7 4.9 5.6 12 0.3 2.2 2.5 6 general education ___ 2.1 Upgrading teacher skills and 0.5 0.8 1.3 0.1 0.0 0.1 school inspection 2.2 Increasing supply of low-cost 0.2 4.1 4.3 0.2 2.2 2.4 textbooks and teaching materials 3. Strengthening key sectoral 1.0 2.2 3.2 7 1.0 0.1 1.1 3 institutions I I__ 3.1 Further developing the 0.2 0.6 0.8 0.9 0.01 0.9 planning and management capacity of MEBA 3.2 Developing the planning and 0.0 0.6 0.6 0.01 0.04 0.1 management capacity of MESSRS | _ 3.3 Education Project Directorate 0.8 1.0 1.8 0.1 0.01 0.1 Physical contingencies 0.8 2.5 3.3 7 - - - Price contingencies 1.7 3.9 5.6 12 - - X TOTAL 14.4 32.0 46.4 100 34.8 4.8 39.6 100 Totals may not add up due to rounding. Sources: Staff Appraisal Report; MEBA; Loan Database of June 27, 1999. 32 TABLE 7B: PROJECT AMOUNT (BY CATEGORY OF EXPENDITURES) (US$ Million) Category Appraisal Estimate Actual Costs Local Foreign Local Foreign Costs Currency Total Costs Currency Total 1. Civil works 0.2 0.4 0.6 1.9 0.00 1.9 2. Classrooms 4.2 8.2 12.3 11.7 0.00 11.7 3. Goods (equipment, furniture, 0.6 5.7 6.3 9.6 1.6 11.2 vehicles) 4. Pedagogic materials 0.0 0.5 0.5 0.3 0.00 0.3 5. School books and manuals 0.0 6.8 6.8 3.3 2.7 6.0 6. Consultant services 0.9 2.2 3.1 5.0 0.6 5.6 7. Training 3.7 1.1 4.8 2.0 0.0 2.0 8. Operating costs 2.2 0.9 3.1 0.9 0.0 0.9 Physical contingencies 0.8 2.4 3.2 - - - Price contingencies 1.7 3.9 5.6 - - - TOTAL 14.4 32.0 46.4 34.8 4.8 39.6 Totals may not add up due to rounding. Source: Staff Appraisal Report; MEBA; Loan Database of June 27, 1999. TABLE 7C: PROJECT FINANCING (US$ Million) Source Appraisal Estimate Actual Costs Local Foreign Local Foreign Costs Currency Total Costs Currency Total IDA 5.7 18.3 24.0 23.7 2.3 26.0 Kingdom of Norway 0.0 3.8 3.8 0.9 2.5 3.4 EEC 2.1 5.2 7.3 3.7 0.0 3.7 CIDA 4.0 4.7 8.7 0.0 0.0 0.0 Belgium 0.0 0.0 0.0 5.8 0.0 5.8 Local participation 1.8 0.0 1.8 0.5 0.0 0.5 Goverment 0.8 0.0 0.8 0.2 0.0 0.2 TOTAL 14.4 32.0 46.4 34.8 4.8 39.6 Totals may not add up due to rounding. Source: Staff Appraisal Report; MEBA; Loan Database of June 27, 1999. TABLE 8: ECONOMIC COSTS AND BENEFITS No attempt was made at appraisal to estimate net present value (NPV) or economic rate of return (ERR) and therefore there is no baseline against which to judge a re-estimate for evaluation purposes. 33 TABLE 9: STATUS OF LEGAL COVENANTS Section Covenant Present Original Revised Description of Covenant Comments Type Status Fulfillment Fulfillment Date Date 3.03 13 C The communities to benefit from the schools to be constructed under Part C.3 of the Project shall be selected by ________ _the Borrower pursuant to criteria agreed with the Association. 3.04 05 C The Borrower shall ensure that the Project Directorate is at all times staffed with a Project Director, an administrator in charge of monitoring of Project Implementation, a procurement specialist, a construction specialist and an accountant, all of whom shall have qualifications and experience satisfactory to the Association. 3.05 (a) 09 CD The Borrower and the Association shall, not later than Mid-term Review took place in April 1995. September 30, 1992 and, thereafter, not later than September Project was reviewed annually in 30 of such subsequent year, undertake a joint review of the accordance with the DCA. Project or, in the case of the review to be undertaken not later than September 30, 1994, a mid-term review, during which they will exchange views on matters relating to the progress of the Project and the performance by the Borrower of its obligations under this Agreement. 3.05 (b) 09 C Not later than one month prior to each such review, the Borrower shall furnish to the Association, for its comments, a report on the progress and status of the Project, and in such detail as the Association shall reasonably request. 3.05 (c) 09 C Following each such review, the Borrower undertakes to act 3.05(c) 09 C promptly and diligently, in order to take any corrective action deemed necessary to remedy any shortcoming noted in the implementation of the Project, or to implement such other measures as may have been agreed upon between the parties in furtherance of the objectives of the Project. 4.01 (a) 09 C The Borrower shall maintain or cause to be maintained records and accounts adequate to reflect in accordance with sound accounting practices the operations, resources and expenditures in respect to the Project of the departments or agencies of the Borrower responsible for carrying out the 34 Section Covenant Present Original Revised Description of Covenant Comments Type Status Fulfillment Fulfillment Date Date Project or any part thereof. 4.01 (b) (i) 01 C The Borrower shall have the records and accounts referred to Audit reports have been received on time, in paragraph (a) of this Section, including those for the and Project is audited according to Special Account, audited for each fiscal year in accordance principles outlined by IDA. with appropriate auditing principles consistently applied, by independent auditors acceptable to the Association. 4.01 (b) (ii) 01 C The Borrower shall furnish to the Association, as soon as available, but in any case not later than six months after the end of such year, a certified copy of the report of such audit by said auditors, of such scope and in such detail as the Association shall have reasonably requested; and 4.01 (b) (iii) 01 C The Borrower shall furnish to the Association such other 4.01 (b) (iii) 01 C information concerning said records, accounts and the audit thereof as the Association shall from time to time reasonably _________ __ _ _request.. 4.01 (c) (i) 01 C For all expenditures with respect to which withdrawals from the Credit Account were made on the basis of statements of expenditure, the Borrower shall maintain or cause to be maintained, in accordance with paragraph (a) of this Section, records and accounts reflecting such expenditures. 4.01 (c) (ii) 01 C The Borrower shall retain, until at least one year after the All reports received on time Association has received the audit report for the fiscal year in which the last withdrawal from the Credit Account or payment out of the Special Account was made, all records (contracts, orders, invoices, bills, receipts and other documents) evidencing such expenditures. 4.01 (c) (iii) 01 C The Borrower shall enable the Association's representatives to examine such records. 4.01 (c) (iv) C1 c The Borrower shall ensure that said accounts and records 4.01 (c) (iv) 01 C shall be audited on a semiannual basis by said auditors, who shall prepare audit reports accordingly and furnish them to the Association, not later than three (3) months after the end of such semiannual audit period, along with an opinion as to whether the statements of expenditure submitted during such period, together with the procedures and internal controls involved in their preparation, can be relied upon to support the related withdrawals. 6.01 (a) (i) 12 C The Borrower has submitted to the Association, for its review 35 Section Covenant Present Original Revised Description of Covenant Comments Type Status Fulfillment Fulfillment Date Date and comments, the fndings of the two studies concerning, respectively, the establishment and operation of the schools referred to in paragraph 4 of schedule 5 to this Agreement, and the proposed liberalization of fees charged by such schools 6.01 (a) (ii) II NC The Borrower has raised the ceiling applicable to such fees Fees have been liberalized ._____ __________ by not less than ten percent (10%) with effect from 1991-92 6.01 (b) 01 C The auditors referred to in Section 4.01 (b) of this Agreement have been appointed, and the accounting system of the Project Directorate duly adapted to meet the requirements specified in Section 4.01 of this Agreement. 6.01 (c)) 12 C The Borrower has submitted a plan, acceptable to the Association, for the introduction, with effect from 1991-92, of a book rental scheme for primary schools, which shall include provisions for: (i) the purchase and distribution of textbooks on a rental basis to primary school students; (ii) the continued operation of a Textbook Fund to ensure a continuous supply of textbooks for students; and (iii) measures to supplement the resources of the Textbook Fund, through appropriate budgetary allocations, in accordance with paragraph 6 (b) of Schedule 5 to this Agreement. Schedule 5.1 12 CP The Borrower shall not later than March 31, 1992, furnish to The standardized assessment has been (a) ( .1 the Association the draft rules governing the proposed applied only to innovative approaches standardized student assessment to be introduced in Grade 3 (double-shift and multigrade teaching and as a diagnostic tool to assess and compare student satellite schools). The CONFEMEN performance across the country, and identify problem areas assisted the Govermment in conducting a in the curriculum prior to Grade 6; and broader students' assessment. Schedule 5.1. 12 CP 3/31/92 The Borrower shall not later than March 31, 1992, furnish to The new design has been limited to delink (a) (ii) the Association the draft rules governing the new design of the certificate examination and the the primary education certificate examination, which shall admission to secondary level. include an optional paper for those seeking admission to secondary level; and Schedule 5.1 12 CD 3/31/92 The Borrower shall, following an exchange of views with the The separation of the two exams has been (b) Association on such draft rules, proceed to have them applied starting 1995/96. adopted, not later than June 30, 1992, for actual _ implementation not later than beginning 1992-92. Schedule 5.2 12 CP 6/30/91 The Borrower shall, with effect from beginning 1991-92, take The system was fully implemented up to appropriate steps to implement the plan referred to in Section the MTR when it was decided to loan I 1_ ___6.01 (c) of this Agreement. textbooks free of charge because 45% of 36 Section Covenant Present Original Revised Description of Covenant Comments Type Status Fulfillment Fulfillment Date Date country lives below poverty line. However the Government contribution continues to be made. At the end of the project, the balance of the textbook funds was CFAF 1,187,028,181. Schedule 5.3 C1 9/30/91 The Borrower shall, not later than beginning 1991-92, proceed to implement an action plan, agreed upon with the Association and designed to reduce its expenditures on subsidies for students in secondary and higher education by five percent (5%) in 1991-1992 and by ten percent (10%) annually, thereafter, until 1996-97, in accordance with a time table which shall have been agreed upon with the Association. Schedule 5.4 9 C 12/3/91 The Borrower shall take appropriate steps, on the basis of the findings of studies referred to in Section 6.01 (a) of this Agreement, to promote the establishment and operation of primary and secondary schools, by individuals, private groups and communities and, to this end, Schedule 5.4 9 C 12/3/91 The Borrower shall, not later than December 31, 1991, (a) announce its decision to decontrol the fees charged by such schools with effect from 1992-93; Schedule5.4CD 12/3/91 The Borrower shall, with effect from 1991-92, establish Schedule 5.4 9 CD guidelines for the operation of such schools, and provide them with easy access to teacher training, textbooks, teacher guides and inspectorate services, with a view to maintaining minimum levels of quality and standards. Schedule 5.5 11 CD 4/20/92 The Borrower shall: (a) not later than April 30, 1992, submit a detailed plan acceptable to the Association, for the establishment and operation of a textbook loan scheme for secondary school students, which shall include provisions for a revolving fund for the supply of textbooks in each secondary school; and (b) not later than beginning 1992-93, proceed to implement such plan. Schedule 5.6 1 1 C The Borrower shall take appropriate steps to secure the resources required to improve the quality and increase the enrollment rate in primary schools and, to this end Schedule 5.6 12 CD The Borrower shall, with effect from beginning 1991-92, 37 Section Covenant Present Original Revised Description of Covenant Comments Type Status Fulfillment Fulfillment Date Date (a) strengthen the teaching cadre in its primary schools through an actual increase in the number of teachers, as indicated below for each of the following six years: 1991-1992 (660), 1992-93 (750), 1993-94 (870), 1994-95 (1,000), 1995-96 (1, 130) and 1996-97 (1,260). Schedule 5.6 1 1 C The Borrower shall allocate not less than six percent (6%) of (b) the overall recurrent budget for basic education for teaching materials and textbooks, and for all other items of non-salary expenditures, in primary schools; Schedule 5.6 13 C The Borrower shall allocate such an amount for operational (c) costs of primary school inspectors, as shall have been agreed upon with the Association; and Schedule 5.6 13 C The Borrower shall increase the primary school budget by an (d) annual average of eight and a half percent (8.5%) in nominal terms, of such other percentage as may be appropriate, to meet he additional commitments involved in paragraphs (a) through (c) above. Schedule 5.7 10 The Borrower shall introduce and generalize multi-grade (a) teaching in primary schools, beginning with a total of not less than 280 classrooms in 1992-93 and increasing progressively to not less than 560 classrooms in 1994-95 and not less than __________ _______ _840 classrooms in 1996-97; Schedule 5.7 12 c The Borrower shall introduce a double-shift system, (b) involving one teacher for two (2) cohorts of 55 pupils each and an appropriate salary supplement for teachers concerned, beginning with Grade 1 in 1992-93, and expanding annually one grade at a time, over the following five-year period, in order to attain, in terms of minimum number of classrooms, the targets set as follows: 1992-92 (60); 1993-94 (140); 1994- 95 (250); 1995-96 (400) and 1996-97 (590). Schedule 5.7 09 C The Borrower shall have an evaluation of the double-shift (c) system conducted in the context of the mid-term review referred to in Section 3.05 (a) of this Agreement and, in the light of the results of such evaluation, take appropriate measures to generalize the system. Schedule 5.8 10 CD The Borrower shall have the studies on constraints to female 38 Section Covenant Present Original Revised Description of Covenant Comments Type Status Fulfillment Fulfillment Date Date (a) participation in education completed not later than April 30, 1992, and the recommendations thereof discussed with the Association not later than September 30, 1992 Covenant Type: 1. = Accounts/audits 8. = Indigenous people 2. = Financial Performance/ revenue generation 9. = Monitoring, review and reporting from beneficiaries 10. = Project implementation 3. = Flow and utilization of project funds 11. = Sectoral or cross-sectoral budgetary or 4. = Counterpart funding other resource allocation 5. = Management aspects of the project or 12. = Sectoral or cross-sectoral policy/ executing agency regulatory/institutional action 6. = Environmental covenants 13. = Other 7. = Involuntary resettlement Present Status: C = Complied with CD = Complied with Delays CP= Complied with partially NYD= Not yet due NC - Not complied with 39 TABLE 10: BANK RESOURCES: STAFF INPUTS Stage of Project Cycle Estimated Actual Weeks US$ Weeks US$ ('000) ('000) Preparation to appraisal n.a. n.a. 85.0 150.7 Appraisal n.a. n.a. 78.8 156.3 Negotiations to Board n.a. n.a. 2.1 4.4 Presentation Supervision n.a. n.a. 181.2 143.4 Completion n.a. n.a. 8.2 20.8 TOTAL n.a. n.a. 355.3 475.6 n.a.: not available Source: Costs Accounting System (FACT, May 19, 1999). 40 TABLE 1 1A: BANK RESOURCES: MISSIONS Performance Rating Stage of Month! Number Days Specialized Implement. Develop. Types of project cycle year of in staff skills Status objectives problems persons field represented A. To Appraisal: Identification 02/88 5 15 A, EC, ED, RM Preparation 04/24/88- 2 10 ES, ED 05/1/88 Preparation 08/88 2 10 ED, RM Pre-evaluation 02/89 6 16 ED, RM, A, E,TP Preparation 04/90 2 15 ED, 00 II B. Appraisal through Board Approval: Evaluation 06/24/90- 8 26 ED, POP/IEC, 07/19/90 MGT, WID, RM, VET, IS, A C. Board Approval 06/91 2 15 ED, RM through Effectiveness Supervision 11/91 to 59 211 A, E, ED, HE, 2 2 12/97: EP, FA, HS, 17 missions IEC, IS, PR, LTA, MGT, PH, PO, RM, WID, TP, PES, HRE, TRG, NSHS 2 2 Completion 01/99 10 ED, IT, RM, _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ LTA, A Specialization: A: Architect; DC: Division Chief; EC: Economist; ED: Principal Education Planner; ES: Education Specialist; FA: Financial Analyst; HRE: Human Resources Specialist; IEC: IEC Specialist; IS: Implementation Specialist; IT: Implementation Team Member; LTA: Language Team Assistant; PEV: EPI Specialist; PH: Public Health Specialist; PR: Procurement Specialist; MGT: Project Management Specialist; NSHS: Nutrition and School Health Specialist; OA: Operations Analyst; 00: Operations Officer; PES: Public Expenditures Specialist; PG: Planning Specialist; PO: Project Officer; PR: Procurement Specialist; RM: Resident Mission staff; SOO: Sr. Operations Officer; TP: Textbook Specialist; TRG: Training Specialist Types of problems for performance: AOF: Availability of Funds; CLC: Compliance with Legal Covenants; DL: Disbursement Lag; OS: Overall Status; PDO: Project Development Objectives; PMP: Project Management Performance; PF: Procurement Progress; SP: Studies Progress; TAP: Technical Assistance Progress; TP: Training Progress Performance Rating: 1: Highly satisfactory; 2: Satisfactory; 3: Unsatisfactory; 4: Highly Unsatisfactory; n.ap: not applicable; na: not available 41 TABLE 11B: BANK RESOURCES: SUPERVISION MISSIONS Performance Evaluation Stage of Project Month # of #of Spec. staff Cycle /Year persons days Skills OS PDO CLC PMP AOF PP TP TAP SP DL _ ___ _____ represented I ______ Supervision I 05/91 3 10 A, ED 2 1 2 2 1 2 1 2 2 0 Supervision 2 11/91 1 7 TP Supervision 3 02/92 5 12 ED, IS, PA, 3 2 2 3 1 3 1 3 2 10.7 TP Supervision 4 07/92 5 15 A, ED, IS, 2 2 2 2 1 2 1 2 2 9.6 00, PES Supervision 5 10/92 3 17 A, ED, HRE, 2 2 2 2 1 2 na na na 75.5 Supervision 6 02/93 3 8 ED, HRE, A 2 2 2 2 1 2 2 2 2 77.8 Supervision 7 05/93 3 7 ED, 00, PH 2 2 2 2 1 2 2 2 2 86.4 Supervision 8 09/93 1 7 ED n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap Supervision 9 10/93 3 9 ED, FA, OO, 2 2 2 2 1 2 1 2 2 (4.6) HP Supervision 10 12/93 2 13 ED, EC, FA n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap Supervision 11 01/94 2 5 ED, HP, 2 2 2 2 1 2 2 2 2 87.5 Supervision 12 04/94 3 9 ED, 00 2 2 2 2 1 2 2 2 2 87.0 Supervision 13 06/94 1 5 HP Supervision 14 07/94 7 18 ED, CE, FA, n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap MGT, TRG Supervision 15 10/94 2 15 00, ED n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap n.ap Supervision 16 11/94 3 13 DC, ED, 2 2 2 2 1 2 na na na 67.8 OO, TRG Supervision 17 04/95 5 8 ED. IS, 00, 2 2 2 2 1 2 2 2 2 42.5 NSHS, Supervision 18 10/95 3 19 ED, 00 2 2 2 1 1 1 1 2 2 19.2 Supervision 19 05/96 4 23 ED, IS, 00 2 2 2 1 1 1 1 2 2 6.6 Supervision 20 04/97 1 13 A, ED, 00, 2 2 2 1 1 1 na na na 7.7 PR, FA Supervision 21 12/97 7 12 A, ED, IS, 2 2 2 2 2 2 na na na 4.1 MGT, 00 Supervision 22 5/98 4 4 ED, PR, A, 2 2 2 2 2 2 na na na 2.4 _ _ _ _ _ _ _ _ _TP __ . _ _ _ TOTAL 71 249 _____ Specialization: A: Architect; DC: Division Chief; EC: Economist; ED: Principal Education Planner; ES: Education Specialist; FA: Financial Analyst; HRE: Human Resources Specialist; IEC: IEC Specialist; IS: Implementation Specialist; IT: Implementation Team Member; LTA: Language Team Assistant; PEV: EPI Specialist; PH: Public Health Specialist; PR: Procurement Specialist; MGT: Project Management Specialist; NSHS: Nutrition and School Health Specialist; OA: Operations Analyst; 00: Operations Officer; PES: Public Expenditures Specialist; PG: Planning Specialist; PO: Project Officer; PR: Procurement Specialist; RM: Resident Mission staff, SOO: Sr. Operations Officer; TP: Textbook Specialist; TRG: Training Specialist Types of problems for performance: AOF: Availability of Funds; CLC: Compliance with Legal Covenants; DL: Disbursement Lag; OS: Overall Status; PDO: Project Development Objectives; PMP: Project Management Performance; PF: Procurement Progress; SP: Studies Progress; TAP: Technical Assistance Progress; TP: Training Progress Performance Rating: 1: Highly satisfactory; 2: Satisfactory; 3: Unsatisfactory; 4: Highly Unsatisfactory; n.ap: not applicable; na.: not available Appendix A Mission d'Achevement du Projet Education IV (Cr. 2244-BUR) et d'Appui au Programme Decennal Novembre 1998 - Janvier 1999 1. Une mission de 1'IDA en plusieurs phases composee de Mmes/MM.: Sakhevar Diop, Specialiste en Manuels Scolaires; Souleymane Zerbo, Ingenieur Urbain; Nicole Hamon, Assistante, et Celine Gavach, Assistante, s'est deroulee sur la periode de ces trois derniers mois. Toutes ces missions ont ete dirigees par M. Makha Ndao, Charge de Projets. De meme, les questions de decaissements et de passations des marches ont et6 regulierement suivies, respectivement, par Korka Diallo (Charge de Programmes), et Celestin Bado (Charge de Programmes) de la Mission Residente de Ouagadougou. 2. L'objectif de cette mission etait l'evaluation finale et la preparation du rapport d'achevement du Projet Education IV. 3. La mission tient a remercier les autorites du MEBA et le personnel de la Direction du Projet Education IV, ainsi que les partenaires au developpement qui ont cofinance directement ou de maniere parallele le Projet Education IV (les Pays-Bas, l'Union Europeenne, le Canada, la Norvege, et la Coop6ration Belge) pour leur collaboration. 4. La mission a pris connaissance du rapport d'achevement pr6liminaire realise par le MEBA, et tient A feliciter l'6quipe pour ce travail de qualite. Apres discussions, la mission a suggere au MEBA de revoir le format du rapport. Celui-ci sera transmis A l'IDA avant fin fevrier 1999. 5. La mission a constate que les objectifs initiaux en terme de taux de scolarisation general, de scolarisation des filles, d'augmentation du nombre de salles de classes, d'augmentation de la part du budget national accorde A l'enseignement de base, ainsi que les mesures d'efficacite ont ete atteints et parfois meme depasses (voir tableau Annexe 1). 6. Scolarisation: Le taux de scolarisation primaire a atteint les 40% prevus; le taux de redoublement a baisse de 17% a 14%; et le nombre d'annees eleves pour un diplome de CEPE est passe de 26 A 12 (voir annexe). 7. Innovations Pedagogigues: Pour une utilisation plus efficace des enseignants et des salles de classes, la mise en place d'environ 1.847 salles de classes multigrades et 950 salles de classes A double-flux, a conduit A la scolarisation d'environ 80.000 enfants supplementaires, et a permis un accroissement de l'ordre de 23% de l'offre educative. 585 encadreurs pedagogiques ont ete formes A cette approche, et 12 equipes pedagogiques regionales ont e creees pour permettre un suivi plus rapproche. 4.184 maitres ont e formes, et des modules specifiques de formation ont ete inclus dans les ENEP. Afin d'ameliorer les conditions de travail, les maitres ont beneficie d'une indemnite mensuelle complementaire, les classes ont recu du mobilier, des fournitures et du materiel scolaire, et 58.663 manuels scolaires ont ete gratuitement mis a leur disposition. Enfin, des campagnes d'information ont e menees dans pratiquement toutes les provinces, A l'intention de tous les partenaires et des beneficiaires (voir annexe 2). Une evaluation de l'approche a ete faite de facon independante par le Gouvemement qui a souligne la pertinence de la formule A condition que les mesures d'accompagnement soient mieux etudiees. 8. Formation des enseignants: Pour ameliorer la formation des enseignants du primaire, 5.000 instituteurs adjoints ont e formes. En outre, le recrutement direct a ete reduit grace A une meilleure planification des recrutements. Ainsi, environ 80% des maitres en poste ont beneficie d'une formation initiale ou continue, et 54,5% d'instituteurs dans les zones rurales et 80,8% d'instituteurs dans les zones urbaines sont qualifies (ils n'etaient que 18,56% a etre qualifies dans 1'ensemble du pays en 1990/91). Un schema directeur de formation pour les personnels ont ete formes et sensibilises pour la mise en oeuvre de ce schema directeur, en meme temps que les possibilit6s de formation initiale et continue etaient ouvertes aux enseignants du prive (voir annexe 2). 9. Gestion des ecoles: La gestion des ecoles et de l'inspection a ete renforcee grAce A la formation de 1.200 directeurs d'ecoles et de 500 encadreurs pedagogiques, et par la dotation en moyen logistiques et operationnels des inspections d'enseignement primaire. 12 formateurs de formateurs ont pu beneficier de formations A l'etranger. La mise en place d'un programme et de logiciels appropries, la formation du personnel de la DEC et l'appui de consultants ont permis une acceleration du traitement des dossiers des examens et concours. L'elaboration d'un plan d'action d'organisation de la rentree a egalement permis l'affectation sans delais des enseignants necessaires des la rentree des classes. 10. Manuels scolaires: L'edition et l'impression ont et6 confiees a des editeurs selectionn6s par AOI; les copyrights et les films sont la propriete du MEBA. Environ 1.8 million de manuels ont pu &re distribues A cofit reduit (environ 63% de moins entre 1990/91 et 1997/98), grace A la renegociation des accords d'exclusivite signes avec des editeurs prives au cours du Projet Education III. Un systeme de gestion des stocks a ete mis en place, et 9lgestionnaires centraux et regionaux ont e formes. Les delais de reimpression des manuels et donc de ruptures de stocks ont par consequent ete considerablement reduits. De plus, la capacite de l'entrep6t central a ete renforcee et trois magasins au niveau regional ont e amenages et equipes. Le personnel de la DES et de la DAAF a ete forme dans l'ellaboration des manuscrits, dans la gestion et la production, le contr6le de la qualite pedagogique, les procedures d'acquisition de livres existants et la gestion des stocks (voir annexe 2). 11. Constructions: L'objectif quantitatif initial du projet qui 6tait de construire 1.200 salles de classe et de rehabiliter 300 classes a e atteint et depasse. Les economies de cofit realisees a la fois sur la reduction de la taille des complexes et les modes d'intervention mis en oeuvre ont permis de depasser cet objectif. La situation A la fin du Projet est de 1.829 salles de classe construites dont 87% en zone rurale, 591 classes rehabilitees et 546 logements. Toutefois, la delegation de la maitrise d'ouvrage A Faso Barra a connu des insatisfactions au triple point des cofits, des delais d' execution et de la gestion des fonds del6gues. L'approche de la normalisation des classes qui n'etait pas prevue dans le montage initial du projet sera amellioree au niveau de: (i) la faiblesse de la participation communautaire; (ii) l'execution des travaux par les tacherons (voir annexe 4); et (iii) des modalites de la prise en charge des ecoles par les collectivites locales dans le sens d'un partenariat bien compris avec tous les acteurs. 12. Sante/nutrition: Les modules de sante et de nutrition ont ete incorpores dans la formation des enseignants et dans les manuels scolaires. Toutes les nouvelles constructions d'6coles ont prevu des latrines. L'execution de cette composante avait connu du retard dui au manque d'experience et de competences au sein du MEBA pour mettre en oeuvre les activites prevues. La gestion de la composante a e finalement d6l6guee a CATWEL. Cela a permis la distribution de micronutriments, des trousses de sante, des carnets de sante, et la formation des enseignants dans 15 provinces (voir annexe 2). 13. Afin de permettre la finalisation de son rapport d'achevement preliminaire, la mission a demande au Projet de bien vouloir lui communiquer au plus t6t des donnees concernant le financement du Projet, telles que presentees dans les tableaux en Annexe 3. Pour la mission IDA S e ation Principa Appendix B Summary of the Government's Report on Project Implementation Education IV Project (Cr. 2244-BUR) Burkina Faso obtained Credit 2244-BUR in order to continue the human resources support activities begun in the Education HI project. The project was financed with fumds coming from IDA, the Government of Burkina Faso (which ultimately contributed 7.54 percent of the total costs), the Kingdom of Norway, Canada, and the European Union. Belgium contnbuted an additional grant to complete the project's construction program. Prior to the launching of the project, the enrollment rate in Burkina Faso was 31 percent, with a literacy rate of about 13 percent. The inequalities faced by the education sector variedbetween regions, between rural and urban zones, and between boys and girls. To overcome these inequalities, the overal objective of the project was to promote quality basic education which was accessible to a large number of children, and to achieve a 40 percent enrollment rate by 1996. To this end, the project: * Rehabilitate 591 classrooms compared with 300 initially planned, which resulted in an additional 60,000 places and an increase in the enrollment rate from 30.69 percent in 19991/92 to 40.9 percent in 1997/98; * Studied the reasons for girls under-enrollment and now possesses a clear strategy to promote girls and women's education which has realized an annual growth rate of 9 percent since 1993; * Improved pedagogical innovations, including the introduction of double-shift teaching in 950 classrooms (a 160 percent execution rate) and of multigrade teaching in 1,847 classrooms (a 219 percent execution rate), allowed for a 23 percent increase in the number of student places and the acceptance of approximately 80,000 new students; * Revised the student evaluation system; * Trained approximately 1,200 teachers; * Improved school management through training, equipment, materials, and logistical means; v Promoted private education, which also regained its credibility and greatly assisted the expansion effort; + Improved the students' health and nutritional status through the purchase of micronutrients and 2,272 emergency health kits; and + Produced 12 student textbooks (of which 4,462,000 were distributed) and 12 teacher's manuals (of which 114,000 were distributed) and succeeded in reducing the cost by 63 percent and reaching a ratio of one textbook per two students. At the institonal leveL the project strengthened the analyticaL planning and sector management capacities which have aided in the development of two programs-the Post-primary Education Development Project and the Ten- year Basic Education Development Plan. The Bank facilitate project implementation by increasing the amount of the Special Account, authorizing a change in the construction strategy, conducting organized supervision mission which assisted project implementation. Finally, the placement of the Task Manager witbin the Resident Mission allowed for rapid disposition of procurement documents. On a less positive note, the frequent change in project supervision and the long delays in disposing of procurement documents at the begmning of the project hindered the implementation of project actvities. The stability of the project team at the Government level greatly contributed to the achievement The bidding procedures were improved, the mobilization of counterpart funds was accelerated, and annual increases in the budget respected. However, project documents submitted to the various administrative stctures were subject to bureaucratic delays. The following are the lessons learned from the project: * Rational and effecdve management of existing resources, as well as those placed by the project at the disposition of the Mrinstry responsible for education allowed for the achievement of satisfactory results in the entire education sector, * The strategies used in both the increase in places and the demand for basic education, as wel as its improved quality constuitte a capital improvement in the advances in the education sector and must be strengthened; and * A long break in external financing may, however, slow the progress already made. MINISTERE DE L'ENSEIGNEMENT DE BASE BURKINA FASO ET DE L'ALPHABETISATION - UnitN-Progris-Justice SECRETARIAT GENERAL N
World Bank Group · Implementation Completion and Results Report
Burkina Faso - Fourth Education Project
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Organisation
World Bank Group
Document type
Implementation Completion and Results Report
Country
Burkina Faso
Source
World Bank