Document of The World Bank FOR OFFICIAL USE ONLY Report No. 5443-_W BURKTNA PRIMARY EDUCATION DEVELOPMENT PROJECT STAFF APPRAISAL REPORT April 22, 1985 Western Africa Projects Department Education Division This document bas a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. CURRENCY EQUIVALENTS Currency Unit - CFA Franc (CFAF) US$1.0 = CFAF 490 CFAF 1 million - US$2,041 W EIGHTS AND MEASURES Metric British/US Equivalents 1 meter (m) 3.28 feet (ft) 1 kilometer (km) = 0.62 miles 1 square kilometer (kM2) = 0.39 square miles LIST OF ACRONYMS AfDB - African Development Bank ("Banque Africaine de Developpement") BEPC - Lower secondary school certificate ("Brevet d'etudes du premier cycle") CFJA - Rural Youth Training Center ("Centre de formation des jeunes agriculteurs") DFONR - Directorate of Rural Training and Organization ("Direction de la formation et de l'organisation du monde rural") DOB - Guidance and Fellowships Directorate ("Direction de l'orientation et des bourses") DPE - Educational Planning Directorate ("Direction de la planification de l'education") DPR - Education Project Directorate ("Direction de Projet Education") ENEP - National Primary Teachers College ("Ecole nationale des enseignants du primaire") FJA - Rural Youth Training ("Formation des jeunes agriculteurs") IPB - Pedagogical Institute of Burkina ("Institut pedagogique du Burkina") MAE - Ministry of Agriculture and Livestock ("Ministere de l'agriculture et de l'elevage") MEN - Ministry of National Education ("Ministere de l1'ducation nationale") MESRS - Ministry of Higher Education and Scientific Research ("Ministere de l'enseignement superieur et de la recherche scientifique") FISCAL YEAR January 1 - December 31 FOR OMCIAL USE ONLY BURKINA PRIMARY EDUCATION DEVELOPMENT PROJECT TABLE OF CONTENTS Page DOCUMENTS IN TRE PROJECT FILE ................... ...... . ...... . iii-iv CREDIT AND PROJECT SUMMARY ............................. ....... ... v-viii I. INTRODUCTION .......................................................... 1 II. THE EDUCATION SECTOR ...................................... * * * * * * * * * * * * * 1 A. General Characteristics ......................................... . 1 B. Issues in Primary Education Development. ............ 2 1. Access, Equity and Financial Constraints .......... 2 2. Quality ................................................. 4 3. Institutional Weaknesses.* ............ 5 C. The Government's Policy............ e ................. . 5 D. The Bank Group's Role ...... ......................... 6 1. Previous Projects ................................. 6 2. Future Approach to the Education Sector ........... 6 TIII THE PROJECT -............-........ A. Project Objective and Description ..................... 7 1. Reduction of Primary Education Unit Costs ......... 7 2. Institutional Development ................ 10 B. Project Cost and F inanein8 Plan ....... 13 C. Project Implementation ............................. 13 i. Procurement ........*.... o....... ... 14 2. Disbursements ........0.. ........... 16 3. Special Account ..................... 17 4. Accounting, Auditing and Reporting ....... 17 IV. PROJECT BENEFITS AMI RISKS ...................... . 18 V. AGREEMENTS REACHED AND RECOMMENDATIONS ................. 18 This report is based on the findings of an TPA appraisal mission which visited Burkina in March 19P4 and was composed of Messrs. Rouag (mission leader), Thias (IDA staff), Abeille, Schaltegger, and Ms. Denning (Consultants). Ms. van Wingerden and Mrs. Monaghan assisted ir processing the report; Mrs. Angers and Mrs. Monaghan processed the data for the cost tables, and Ms. Roos advised on the overall presentation of the report. I This docment has a resuicd distribution and may be used by recipients only in the peron=e of their ofriial duties. Its contents may not otherwise be discdse without World Bank authorization. - ii - Table of Contents (continued) ANNEXES 1-1 Socio-Economic Background 1-2 Basic Data 2-1 Structure of the Education and Training System 2-2 Enrollments by Educational Level, 1983 2-3 Organization Chart of the Ministry of National Education 2-4 Primary Education Enrollments, 1974-83 2-5 Comparative Education Indicators 2-6 Current Government Teacher Salaries, Fellowships and Subsidies Policies 2-7 Education Expenditure by Sub-sector and Major Components, 1977-84 2-8 Unit Costs in Primary and Secondary Education in Selected West African Countries 2-9 Evolution of the Structure of the Primary Teaching Force 2-10 Primary Teacher Categories and Salary Scales 2-11 Ouagadougou Seminar: Main Primary Education Expansion Scenarios Discussed 2-12 Pedagogical Institute of Burkina and School Equipment Division Background Information 2-13 Status of the Main Planning and Management Institutions and of the Primary School Construction Capabilities 3-1 Schedule of Textbook Adaptation, Development, Procurement and Distribution 3-2 Production and Procurement Targets for Textbooks and Teacher Guides 3-3 Suimmary of Fellowships 3-4 Summary of Specialist Services 3-5 Teachers Employed in Project Schools by Category and Salaries 3-6 Alternative Solutions for the Pilot School Building Program 3-7 Organization Chart of the Education Projects Directorate; List of Staff Financed by IDA Credit 3-8 Project Cost and Financing 3-9 Implementation Schedule 3-10 Procurement Procedures 3-11 Disbursement Profile 3-12 Summary of Recurrent Expenditures Generated by the Project MAP IBRD No. 18294: Burkina - iii - BURKINA PRIMARY EDUCATION DEVELOPMENT PROJECT DOCUMENTS IN THE PROJECT FILE Ref. No. Documents Document Code 1. Ministere de l'Education nationale; Statistiques scolaires BF-500 1970-71 a 1982-83/Ministry of -National Education; Educational Statistics 1970-71 to 1982-83. 2. Ministere du Plan et de la Cooperation, Institut naticnal de BF-700 la Statistique et de la Demographie: (a) Fichier des v-illages, Decembre 1979; (b) Atlas des villages de Haute Volta, carte de localisation des villages de Haute Volta par district de recensement/Ministry of Planning and Cooperation, National Institute for Statistics and Demography: (a) Index of villages, December 1979; (b) Atlas of Upper Volta villages, map of Upper Volta villages by census districts. 3. Ministare des finances; Budget de l'Etat 1980, 1981, 1982/ BF-182 Ministry of Finance; State Budget 1980, 1981, 1982. 4. Unesco; Republique de la Haute Volta: Perspectives de BF-500 d6veloppement d'une education pour tous/Unesco; Development prospects for universal basic education, September 1982. 5. Fonds d'Aide et de Cooperation; couts et financement de Doc. No. 1'enseignement superieur en Haute Volta/Fonds d'Aide et de 221.927(5) Cooperation; Cost and Financing of Higher Education in Upper Volta, November 1982. 6. Costs et financement des services educatifs en Haute Volta; Doc. No. situation actuelle et perspectives/Cost and financing of 129.397 educational services in Upper Volta; present situation and perspectives, November 1982. 7. La carte scolaire en Haute Volta, Avril 1983/ Doc. No. School mapping in Upper Volta, April 1983. 129.264(0) 8. Rapport sur les organisations non-gouvernementales Doc. No. travaillant dans le domaine des techniques de construction 221.927(8) a cout reduit en Haute Volta, Mai 1983/Report on the non- governmental organizations working on low-cost construction in Upper Volta, May 1983. 9. Mobilier scolaire en Haute Volta, Juillet 1983. Doc. No. School Furniture in Upper Volta, July 1983. 200.050 BF-Cr956 - iv - 10. Direction du Projet Education; Construction des Ecoles Doc. No primaires en Haute Volta/Education Project Directorate; 221.927(10) Construction of Primary Schools in Upper Volta, Octobre 1983. 11. Modale de simulation du financement de l'enseignement: le cas Doc. No. de la Haute Volta/Simulation model of the financing of 221.927(11) education: the Upper Volta case, November 1983. 12. Note sur le financement de l'extension a long terme de Doc. No. l'enseignement primaire/Note on financing in the long run of 221.927(12) the expansion of primary education, December 1983. 13. Rapport d'Evaluation: Manuels scolaires/Evaluation Report: Doc. No. Textbooks (Working Paper), March 1984 (2 vols.) 221.927(13) 14. Programme pilote de construction scolaires/Pilot School Doc. No. Building program (Working Paper), April 1984. 221.927(14) 15. Construction de 150 ecoles/Construction of 150 schools Doc. No. (Working Paper), April 1984. 221.927(15) 16. Services architecturaux, construction et passation des Doc. No. marches, d'etudes, de fournitures, de mat6riaux et de 221.927(16) main-d'oeuvre/Architectural Services, Construction, and Procurement (Working Paper), April 1984. 17. Ecole nationale des enseignants du primaire de Loumbila/ Doc. No. National Primary Teacher Training College at Loumbila 221.927(17) (Working Paper), April 1984. 18. Institut Pedagogique de Burkina/Pedagogical Institute Doc. No. of Burkina (Working Paper), April 1984. 221.927(18) 19. Division de l'Equipement scolaire/School Equipment Division Doc. No. (Working Paper), April 1984. 221.927(19) 20. Renforcement qualitatif de la formation des jeunes agricul- Doc. No. teurs/Strengthening of the Quality in the Training of Young 221.927(20) Farmers (Works Paper), April 1984. 21. Direction de la Planification/Education Planning Directorate Doc. No. ,Working Paper), April 1984. 221.927(21) 22. Direction du Projet Education/Education Project Directorate Doc. No. (Working Paper), April 1984. 221.927(22) 23. Direction de l'Orientation et des Bourses/Guidance and Doc. No Fellowships Directorate (Working Paper), April 1984. 221.927(23) BURKINA PRIMARY EDUCATION DEVELOPMENT PROJECT CREDIT AND PROJECT SUMMARY Borrower: Burkina Faso Beneficiaries: - Ministry of National Education ("MinistJere de 1'education nationale" - MEN) - Ministry of Agriculture and Livestock ("Ministere de l'agriculture et de l'glevage" - MAE) - Ministry of Higher Education and Scientific Research ("Ministere de l'enseignement superieur et de la recherche scientifique" - MESRS) IDA Credit Amount: SDR 21.8 million (US$21.6 million equivalent) Terms: Standard Project Description: The major objective of the project is to implement a sector financing strategy for accelerating the expansion of primary education through: 1. Reduction of primary education unit costs by means of: (a) The restructuring of primary teacher training and the reclassification of the main category of primary school teachers ("instituteurs-adjoints") at a lower entry level of the civil service, and related investment in the National Primary Teachers College in Loumbila; (b) Cost-efficient provision of primary school textbooks through (i) promotion of a national textbook development capability at the Pedagogical Institute of Burkina; and (ii) procurement and distribution of textbooks and other learning materials to meet short-term needs through assistance to the School Equipment Division of the Ministry of National Education; and - vi - (c) Experimentation with and introduction of low-cost primary school construction through (i) a pilot school building program designed to develop cost-efficient facilities and to encourage, by establishing a system of matching contributions for construction costs and teacher salaries, regional and local initiatives in primary school construction and maintenance; and (ii) a primary school building program in seven disadvantaged provinces totalling 150 school units and related equipment, and development of a school maintenance and repair system. 2. Development of the central institutions' capabilities for planning, managing and controlling education costs, in order to maintain reduced unit costs over the long term and to reallocate resources among the various educational levels, thereby accelerating the expansion of prinary education, by: (a) Reinforcing the planning capacity of the Educational Planning Directorate; (b) Strengthening the management expertise of the Guidance and Fellowships Directorate within the Ministry of Higher Education and Scientific Research (MESRS); (c) Improving the planning and monitoring capacity of the Directorate of Rural Training and Organization (DFOMR) within the Ministry of Agriculture and Livestock (MAE); and (d) Expanding project preparation and implementation capabilities iu the MEN through assistance to the Education Project Directorate. - vii - Estimated Project Costs: (Net of taxes and duties from which the project would be exempt.) Categories Local Foreign Total -------US$ million-------- A. Reduction of Primary Education Unit Costs Restructuring of Teacher Training 0.1 0.5 0.6 Textbook Development, Procurement and Distribution 0.3 2.2 2.5 Primary School Construction and Maintenance Program 4.5 4.7 9.2 Sub-total 4.9 7.4 12.3 B. Institutional Development Educational Planning 0.2 0.4 0.6 Management of Higher Education 0.1 0.4 0.5 Rural Youth Training Management 0.3 1.2 1.5 Project Management 0.4 2.1 2.5 Sub-total 1.0 4.1 5.1 Total Base Cost 5.9 11.5 17.4 Physical Contingencies 0.3 0.7 1.0 Price Contingencies 2.1 2.7 4.8 TOTAL PROJECT COSTS 8.3 14.9 23.2 Financing Plan: Local Foreign Total. --------US$ million-------- DA 6.7 14.9 21.6 Government 1.6 - 1.6 TOTAL 83 14.9 23.2 - viii - Estimated Disbursements: FY86 FY87 FY88 FY89 FY90 FY91 FY92 -- _ ----US$ mIl3Llon _--- - =- Annual 1.6 3.0 3.7 4.3 3.9 3.0 2.1 Cumulative 1.6 4.6 8.3 12.6 16.5 19.5 21.6 Economic Rate of Return: Not Applicable Project Benefits: The project would establish a framework for expanding primary education by (a) restructuring and reducing costs of primary schooling through implementing cost-efficient modes of providing the major inputs (teachers, textbooks and classrooms). and (b) assisting in institution-building efforts throughout the education system which would lead to a more efficient use of resources and make nossible a gradual reallocation of funds in favor of primarv education. Risks: Risks include the inadequate technical capacities of the main institutions responsible for resource use planning In the sector and the limited experience in school construction and project implementation in the Ministry of National Education. A sizeable staff training program for the implementing agencies and the provision of specialiot services in kev areas are included In the project to help overcome these handlcaps. Map: IBRD 18294, Burkina WAPED Apri] 1985 SURICINA PRIMARY EDUCATION DEVELOP?CzNT PROJECT I. INTRODUCTION 1.01 The Government of Burkina has requested IDA's assistance In financing a project to expand and improve primary education. The estimated project cost Is US$23.2 million equivalent (not of taxes and duties). with a foreign exchange component of 642. The Government would contribute US$1.6 million equivalent to the project (in the form of salaries for national staff and counterpart contribution for school maintenance and repair), and the remainder of US$21.6 mlillon equivalent would be financed by IDA. The African Development Bank (AfDB) was requested to cofinance a part of the project, but was unable to do so. 1.02 The proposed project would be IDA's third contrSl'ution to the development of the education and tralning sector. and the first major operation In support of the Ministry of National Education ("NinIstlre de 1' ducation nationals" - MEN). Its major objective would be to Implement a sector financlng strategy for acceleratlng the expansion of primary education. DA Is In a privlleged position to assist In thiS effort, as over the past three years it has been engaged In a sector policy dialogue on education cost and financing Issues with the educational authorities. Detailed socio-economlc background Informtion Is provlded in Annex 1-1. The basic data bheet Is at Annex 1-2. II TH! EDUCATION SECTOR A. General Characteristics 2.01 The education system. Burkina's education and training system follows the pattern of other French-speaking countrles In the region. A six-year prisary cycle starting at age 7 Is followed by four years of lower and three years of upper secondary school (general *nd technical) and higher education at the Unlverslty of Ouagadougou or abroad. In addltion to the forml education system, the country has developed rural youth training ("Formation don jounes agricultours" - FJA)* vhich compriseo a network of about 600 rural youth tralning centers ("Centres de formation des jounes agriculteurs" - C?JAs) with about 15.000 trainees. 102 of them girls. The throe-year course focuses on literacy training and basic agricultural skills. In 1983. private schools (religious and non-denominational) accounted for less than 102 of primary enrollmoet but dominated the secondary level, with 522 of all enrollments In secondary general and 722 In technical education. Burkina's poverty Is reflected in Its education system: after more than two decades of development efforts and substantial *nrolloent growth, thl system still lags behind that of scat other countrles and appears to be falling further behind. Nowhere Is this more In evidence than In prSuary education. At Annex 2-1 is a chart showlng the structure of the educatlon and training system. Annex 2-2 gives enrollmento by educational level. 2.02 OrRanization and administration. The administrative responsibilities for education and training are divided among three ministries: the Ministry of National Education ('Ministire de l'Education nationale" - MEN) for primary and secondary schooling; the Ministry of Higher Education and Scientific Research ("MinistOre de l'enseignement supfrieur et de la recherche scientifiquo" - MESRS) for university education, including studies abroad; and the Ministry of Agriculture and Livestock ("Minist?lre de l'agriculture at de l'flevage" - MAE) for the FJA system. In addition, several other ministries such as Public Works, organize their own pre- and in-service training programs. An organization chart of the MEN is at Annex 2-3. B. Issues in Primary Education Development 1. AcCesR. Equity and Financial Constraints 2.04 Access and equitv. Burkina's gross primary enrollment rate of about 19% of the 7-12 age group Is one of the lowest In Africa. Access to education is uneven. Rural areas nre at a disadvantage compared to urban areas, and girls fare worse than boys. Enrollment rates for the 35 inspectorates range from 5% (Danr in the Sahelian Region) to 71% (Bobo-Dloulasso). Girls account for 372 of primary enrollments, with onlv minor regional variations. Manv villages with populations of 1,500 to 2,000 (sizes that would justify six-classroom prlmary schools) do not have anv school: many others have schools with three or fewer classrooms. Annex 2-4 gives primary education enrollments for the vears 1974-83, and Annex 2-5 provides a table of comparative education Indicators showing how Burkina's education svstem compares to others. 2.05 Financial constraints. Tn 1983. the Government allocated CFAF 11.3 billion to the education sector, a figure equivalent to 2.1% of the country's GNP and aboxt 222 of the central Government budget. Capital Investment in education amounted to 7: of the total nectoral budget over the period 1977-83. While these percentages are not verv hi-h In the context of the other African countries, a comparison wi4th the primary enrollment levels attained suggests severe constraints to further Rrowth. 7.06 Ihe uinsatisfactorv relationship between efforts made and results achi-ved can be traced to two main factors: the relatively high cost of the main input (teachers) Into primary schoollng and anomalies of resource allocation in the rest of the education sector. Annex 2-6 provides background Information on teacher salaries, fellowshlpN and subsidies policies. Annex 2-7 Rives education expenditures bv sector and main components for the vears 1977-84. Annex 2-8 showa unit costs in primarv and secondary education in selected West African countries, Annex ^-9 the evolution of the structure of the teaching force. and Annex 2-10 the teacher categories and salarv scales. 2.07 The primarv teacher work force consists mainly of two categories: the "instituteurs" flevel BI). recrulted from graduates of the upper secondary schools or throtzgh examination promotion from the "instituteur-adjoint" level. and the "Instirtiteurs-adjoints" (level R2). recruited from graduates of the lower secondarv schools and trained for two years. While primarv teacher salaries are modest l'v internationa1 comparlson (about USS2.10 for an "instituteur adjoint" in sld-career) rhev are high in comparlson to Burkina's income level (more than 10 -3 - times the GNP per capita vs. 2.4 in Latin America and 2.6 in Asia). Liberal standards for promotion from the "instituteur adjoint" to the "instituteur" category (reflected in :m average annual net increase of the latter between 1980 and 1984 of over 9%) add another element of escalation to primary education costs. Since maintenance of primarv schools in Burkina Is minimal and normally carried out directly by the village communities, the 'bulk (98Z) of the primary education budget goes for teacher salaries. Consequently, any attempt at improved cost management in the subsector would have to focus on this input. However, reduction of teacher costs per pupil through an increase in the pupil/teacher ratio is not a viable means: the national average of 65 being already high. 2.08 Two other components of the education budget-fellowships and subsidies to private education- stand out, both because of their size and their indiscriminate use. The award of fellowships for higher education ignores criteria such as economic need, academic performance or labor market requirements, its only restrictive element being a rather generous age limit. As the number of secondary school leavers grows, so does the volume of university fellowships. Subsidies to religious secondary schools have been granted at the uniform rate of 50% of their budgetary requirements, again without taking account of the individual schools' needs or performance. 2.09 Thus, any major advance in primary education development would require a restructuring of the primary teacher corps to reduce unit costs, and a revision of present fellowship and subsidy policies. This conclusion was confirmed and developed in detail with the help of an education financing simulation model which has made a major contribution to the sector policy dialogue between the Government and IDA. Discussions have focused on a review of the major policy parameters in the education budgeting process. These parameters cover three areas: (a) inter-sectoral resource allocation (growth rate of the central government budget and of the education sector); (b) intra-sectoral resource allocation (growth rates of budgets of various education sub-sectors and of their major elements such as teacher salaries, fellowships, and subsidies); and (c) efficiency of resource use (unit construction costs, pupil/teacher ratios, curriculum hours). These parameters were entered in the model which simulates the financial structure of Burkina's education system, and permits the effect of policy alternatives on the education budget to be projected. The model was presented during a policy seminar held in Ouagadougou in October 1983 with officials from the concerned Ministries (Education, Higher Education, Rural Development, Finance, Planning, Labor). Annex 2-11 shows the main scenarios for primary education expansion which were discussed at the seminar. 2.10 One of the main alternatives considered was a policy of non-intervention, i.e., holding the policy parameters constant at the base year (1982) levels while assuming a continuation of recent total budgetary growth. This course of action would raise the gross enrollment rate only slightly from about 19% to 27%. The unit cost remaining constant, the growth would be in proportion to the overall budgetary growth. 2.11 By contrast, the other alternatives postulated policy changes in several areas, with the understanding that any budgetary savings in the system would be channelled into the development of primary education. One scenario of moderate intervention on a number of parameters was particularly instructive. It would (a) combine a slight increase in the share of the education sector budget in the total Government budget with a decrease in the budget for secondary and higher education -4- fellowships, an increase in the remaining budget for secondary and higher education at an annual rate slightly lower than that for the total Government budget, and an increase in the subsidies to private education at the same rate as the Government budget increase; and (b) include the reclassification of the main category of primary school teachers ("instituteurs-adjoints") from level B2 to Cl which would decrease significantly the primary education unit costs (from US$38 to USS29 equivalent in constant 1982 US dollars). As a result, the primary gross enrollment rate would increase to about 66% by the year 2000, a level in line with the Government's unofficial target (para 2.19). 2.12 These simulations demonstrate that a substantial increase in primary school enrollments before the end of this century is possible, provided the Government introduces a new category of lower-paid teachers (recruitment at level C1) to fill the additional posts and increases the budget for primary education through the reallocation of funds to and within the education sector. 2. Quality 2.13 Quantitative and qualitativ- shortcomings affect the two key inputs into primary education-teachers and textbooks. While the general educational level of newly recruited primary school teachers is acceptable, the insufficiency of training facilities (240 places at two secondary schools) has resulted in a shortfall of qualified teacher training graduates. Over the past three years an average of 180 primary classrooms remn-ined vacant during part or all of the school year for want of qualified teachers. 2.14 Moreover, the poorly balanced teacher training program emphasizes general subjects at the expense of pedagogical training and practice, training methods are inadequate, and pedagogical support to primary school teachers, particularly in rural areas, is weak, mainly because of inadequate transportation. With the opening, in October 1985, of the new National Primary Teachers College ("Ecole nationale des enseignants du primaire" - ENEP) in Loumbila (para 3.02), the physical basis for restructuring primti,ry teacher training will become available. 2.15 Primary school textbooks are scarce, costly, heterogeneous and of limited relevance. Some stem from foreign donations spread unevenly over the country and showing undesirable diversity. The same holds true for commercially provided textbooks, which in addition are costly and therefore out of the reach of most families, particularly those in rural areas. Moreover, all textbooks are either directly imported or only slightly adapted to conditions in Burkina, thus curtailing their relevance and comprehensibility. Since October 1984, the Government has standardized the prices of textbooks and teaching materials throughout the country, and has selected a set of textbooks to be used in all primary schools. Nevertheless, even the reduced prices (e.g., US$14.55 equivalent for all textbooks required for Grade 6) entail a considerable burden for most families. The organizational structures for the development, production and distribution of teaching materials are already in place. The Pedagogical Institute of Burkina ("Institut pedagogique du Burkina" - IPB) and the School Equipment Division of the Primary Education Directorate share responsibilities in this area. Annex 2-12 provides background information on these institutions. -5- 2.16 As a result of inadequate and inappropriate inputs, the primary education system suffers from low internal efficiency. Repetition averages more than 18% over the six-year cycle and is as high as 45% in Grade 6. Within the normal time of six years, only a quarter of all entrants pass the final examination, which is not a qualifying examination for secondary school and therefore reflects achievement rather than a scarcity of secondary school places. It takes more than 13 student years to produce a primary school graduate in Burkina. 3. Institutional Weaknesses 2.17 While the simulation exercise (paras 2.09-2.11) has demonstrated the possibility of a significant expansion of primary education through a policy of reallocation of the education budget and efficient use of resources and mobilization of incremental resources, two impediments stand in the way of its implementation. The first is the inadequate technical capacity of the main institutions responsible for the planning of resource use in the sector: the Educational Planning Directorate, the Guidance and Fellowships Directorate, and the Directorate of Rural Training and Organization ("Direction de la formation et de l'organisation du monde rural" - DFOMR), in MEN, MESRS and MAE, respectively. The other impediment is the limited experience in school construction and project impleme.itation of the newly created Education Projects Directorate in MEN. A strengthening of these institutions is tmperative if the large and difficult task of reallocating and managing resources for primary education expansion is to succeed. Annex 2-13 gives the status of the main planning and management institutions. C. The Government's Policy 2.18 Burkina's ed-fcation system, very small at independence, began to develop in response to urgent needs for middle-level and professional manpower. By the late 1960s, the task of developing basic education throughout the country came to be seen as increasingly important. The Government chose the vehicle of nonformal rural training to combine literacy training with the teaching of basic agricultural skills (para 2.01). In recent years, however, the Government has come to realize that this alternative system is no substitute for widespread primary education, mainly because of the educational preferences of most rural families, the substantial physical requirements of the FJA system and, due to the necessarily small size of trainee groups, its considerable unit costs, amounting to about US$143 per trainee year, versus US$38 in primary education. 2.19 The Government is now embarking upon the rapid expansion of primary schooling as its foremost sectoral objective, having established a tentative enrollment target of 60% for the year 2000. It realizes that this will require major policy modifications, particularly general resource reallocations within the sector and a gradual restructuring of the primary teacher corps in order to lower average salaries. Signale of this awareness are: the assignment of about 900 members of the recently established National Civil Service to teach for one year in primary schools - an expedient that avoids long-term budgetary commitments (but whose educational merits are still untested); a shift in university scholarships wherever possible from the more expensive foreign institutions to 0uagadougou University; a drastic curtailment of subsidies to private secondary -6- schools; a curb on the further expansion of the network of public secondary schools; and a rethinking of fellowship policies. These new initiatives are expected to coalesce and take more concrete form in the forthcoming Development Plan for the five-year period 1986-90. D. The Bank Group's Role 1. Previous Projects 2.20 Previous Bank Group r.ss4stance to education and training in Burkina focused on the FJA, with supplementary investments in other areas. The First Education Project (Cr. 430-UV, signed in June 1973, for US$2.85 million) aimed at strengthening the FJA system In three of the country's eleven regions. In addition, the IDA Credit included funds for building and equipping 22 secondary school science laboratories. Following a one-year extension of the Closing Date, Cr. 430-UV was fully disbursed and all components--with the exception of the scier.ce laboratories-were completed, albeit on a reduced scale because of cost increases and adverse rate-of-exchange fluctuations. (PPAR No. 3839, March 1, 1982.) 2.21 The Second Education Project (Cr. 956-UV), signed in October 1979, for US$14.0 million) continued to provide support of the FJA system and also gave assistance to the Public Works Training Center. The project has experienced initial delays and difficulties due to changes in administrative responsibilities, but performance has improved significantly over the past two years. After an initial one-year extension of the original Closing Date and a second extension of six months, the IDA Credit will be closed on December 31, 1985. 2. Future Approach to the Education Sector 2.22 Recognizing that a broad base of literacy, particularly among the rural population, is an essential condition for sustained socio-economic development, the Bank Group considers support for Burkina's basic education the first priority for continued lending to the sector. Given the non-replicability on a large scale of the FJA system to provide basic education, future assistance would pursue this aim through the expansion of primary schooling. However, care should be taken to harmonize the entire system of basic education (primary and FJA) to avoid waste of resources. Support should be provided directly (through the provision of critical inputs to primary education) and indirectly (through participation in the efforts to restructure the financing of the education system). More specifically, the Bank Group's involvement will address the following areas: (a) cost-efficiency of post-primary education; (b) institutional development and assistance to the management of the education system, particularly for the management of costs and the promotion of a cost-recovery system for post-primary education; and (c) support of efforts to develop suitable modes of primary education in sparsely populated areas. -7- III. THE PROJECT A. Project Objective and Description 3.01 The project has as its main objective the implementation of a financing strategy designed to accelerate the expansion of primary education through reduction of primary education unit costs, and development of the central institutions' capabilities for planning, managing and controlling education costs. In order to reduce unit costs, the main category of primary school teachers ("instituteurs-adjoints") would be recruited at a lower salary level, and the internal efficiency of primary education would be improved through better focused training of teachers, combined with the development of a textbook production, procurement and distribution capability. To reduce primary school construction costs, low-cost designs for classrooms, as well as ways to encourage local initiatives in school building, would be developed and introduced through a pilot school building program. By the same token, a system of periodic school maintenance and repair would be established in the project area. To develop the central institutions' capabilities for planning, managing and controlling education costs, with a view to maintain reduced unit costs over the long-term and to carry out the necessary resource allocations within the sector, the project would strengthen the Educational Planning Directorate and the Education Project Directorate in MEN, the Guidance and Fellowships Directorate in MESRS, and the Rural Youth Training Directorate in MAE. 1. Reduction of Primary Education Unit Costs 3.02 Restructuring of teacher training. In order to reduce primary education unit costs and thereby alleviate the financial constraints to primary education expansion, the project would help to reclassify the new category of primary school teachers ("instructeurs-adjoints"), who would still be recruited with a lower secondary school diploma (BEPC) but integrated into the civil service at level Cl instead of B2. It would also help to upgrade the promotion examination for all primary school teachers in order to introduce a measure of selectivity and slow down the overall rate of promotion. The new "instituteurs-adjoints" who would comprise the standard teacher category in primary educatlon, would be trained for one year at the National Primary Teachers College in Loumbila (para 2.14). The training course, an outline of which is already available, would have a course content comprising pedagogical training (about 40%), general subjects (40Z), and complementary courses such as agriculture and physical education (20X). The primary teacher promotion examination would be upgraded by introducing general subjects. Promotion requirements would thereby be tightened and the overall rate of promotion slowed. 3.03 The National Primary Teachers College is being established with assistance from the Netherlands (US$1.4 million for civil works). Construction started in early 1984 and is expected to be completed by mid-1985. The ENEP will have an enrollment of about 340 students, which would be sufficient to meet the requirement for primary school teachers training over the next five to ten years. The proposed IDA credit would finance: civil works (additional housing for 12 staff); furniture and equipment; fellowships; and incremental operating costs (operation and maintenance of facilities, equipment and materials). - 8 - 3.04 During negotiations, the Government submitted to IDA the decree establishing the National Primary Teachers College and reclassifying the main category of primary schools teachers ("instituteurs-adjoints") from level B2 to Cl, thus ensuring the timely introduction of the new teacher training program and obviating a previously sought condition of credit effectiveness. 3.05 During negotiations, the Government gave assurances that it will issue, prior to December 31, 1986, a decree upgrading the primary teacher promotion examination. 3.06 Textbook development, 1rocurement and distribution. The project would provide assistance to the Ministry of Rational Education to develop a capability to produce, adapt, procure and distribute low-cost textbooks and teacher guides for the primary schools. This assistance not only would help the Ministry to meet the urgent short-term needs for textbooks and reduce their cost (para 2.15), but would also, over the long term, improve the internal efficiency of primary education and curtail any side effects of the introduction of the new category of teachers (para 3.02) on the quality of primary education. This textbook component would encompass three activities: (a) development, over the medium term, of a managerial and technical capability within the Pedagogical Institute of Burkina (IPB) to adapt suitable imported materials in the less culturally biased subjects (math and science) and to produce national textbooks in French for Grades 1-3; (b) strengthening the capabilities of the School Equipment Division to procure and distribute textbooks and other teaching materials; and (c) assistance in the provision of about 800,000 textbooks and teacher guides. Annex 3-1 provides the s*chedule for textbook adaptation, development, procurement and distribution. Production and procurement targets for textbooks and for teacher guides are shown in Annex 3-2. 3.07 Assistance to the Pedagogical Institute of Burkina (IPB) would focus on the reorganization of the Teaching Materials Production Department during the first year of project implementation in order to establish an Editing Division staffed with 10 writers and three editors and a Production Division staffed with two textbook production specialists, one layout and one graphics designer, and 11 skilled printers (all nationals). The School Equipment Division would receive seven additional staff to strengthen its distribution and storage facilities. The textbook provision program would encompass the production of about 180,000 textbooks each for math and science (Grades 3-6), 155,000 textbooks for French (Grades 1-3), and 6,000 teacher guides for each of these subjects. For reasons of economy, expediency and quality, the prin_ing of the textbooks would be done abroad, but the teachers guides would be printed locally. To meet urgent requirements that cannot, in the short term, be satisfied through national efforts, the program would also include the importation of about 260,000 textbooks and 8,500 teacher guides in French for Grades 1-6, distribution of the combined stocks of the locally adapted and imported textbooks, and monitoring of their use. Distribution of the textbooks would be carried out in two stages: from the School Equipment Division to the Primary School Inspectorates, and thence to the primary schools. Transportation would be handled by private contractors. Textbooks which are expected to last for three years, would be loaned free of charge to the primary school students. 3.08 The proposed IDA credit would finance: (a) civil works to rehabili- tate/modify the IPB library, conference room and former printing shop into offices for the Editing Division and to build an adjacent printing shop and a central -9- warehouse and rehabilitate two inspectorate warehouses for the School Equipment Division; (b) furniture, equipment and vehicles; (c) the acquisition of adaptation rights for textbooks, the production costs of textbooks and teacher guides, and the procurement of imported textbooks and teacher guides; (d) staff training and specialist services; and (e) incremental operating expenditures (operation and maintenance of equipment and facilities and distribution costs). During negotia- tions, the Government gave assurances that, no later than June 30, 1986, the IPB's Teaching Materials Production Department will be reorganized to establish an Editing Division and a Production Division, with staffing in numbers and with qualifications satisfactory to the Government and to IDA. Annexes 3-3 and 3-4 give details of the staff training and specialist services programs. 3.09 Primary school construction and maintenance. In order to reduce primary school building costs, encourage local initiatives in school construction and maintenance, and increase the number of school units, the project would: (a) conduct a pilot program for identifying cost-efficient modes of primary school construction; (b) establish a fund to encourage village construction of schools through matching contributions; and (c) implement a loi-cost primary school construction program, based on the pilot program, which would increase the total number of school units by about 12Z and would be carried out in seven disadvantaged provinces. This program would also aim at establishing a village-based system of school maintenance (para 3.11). 3.10 For the pilot school building program, the Education Project Directorate would be provided assistance in constructing 30 classrooms and supplementary facilities to experiment with various building standards, with economy and ease of maintenance as important criteria in identifying suitable modes. To facilitate supervision of the program and also to provide an adequate number of teaching practice schools for the National Primary Teachers College (para 3.02), some of the experimental classrooms would be located near Loumbila, which is about 30 km northeast of Ouagadougou. During project implementation the Education Projects Directorate would conduct a systematic evaluation of the pilot school building program, using criteria agreed with IDA, and the Directorate's findings and recommendations would be submitted to IDA for review. The matching contributions would help (a) complete local school building efforts in villages where most of the necessary investment has already been made without help from the Government; and (b) defray the cost of the salaries of teachers to staff the classrooms provided under the pilot school building program and in cases where villages have built or are willing to build a school. These matching contributions would serve as incentives for local authorities and villagers to build and maintain schools and would help to develop the organizational pattern for such initiatives. The identification of participating villages would be made by the primary school inspectors, who would turn over the candidacies to the Education Project Directorate for further processing. For the primary school construction program, the Education Projects Directorate would be provided assistance in constructing about 450 classrooms and teachers houses in 150 villages located in the provinces of Bam, Gnagna, Gourma, Namentenga, Sanmatenga, Tapoa and Yatenga. The villages were selected mainly on the basis of a school mapping exercise conducted by the Educational Planning Directorate. Normally, a three-classroom unit, supplemented by three teachers houses and a well, would be built in a village lacking a school building; in a few cases, additional classrooms would be provided for large villages where there is an acute shortage of student places. For each classroom, one housing unit would be provided because the lack of adequate teack - housing - 10 - has been a major constraint to educational development in the rural areas. The organization of civil works would be based on experience gained in other rural projects, particularly in buildlng Rural Youth Training Centers (CFJAs) under Cr. 956-UV (pars 2.21). To adapt classroom and ataff housing designs to local conditions and to the availability of local building materials, as well as to assess alternatives for organizing the work (especially ways to permit the participation of villagers), a trial run comprising 10 school units is being implemented in 1984/85, financed under Cr. 956-UV. Prior to the start of the main construction program' s first annual tranche (scheduled for October 1985), the results of this trial run would be evaluated for application in the main program. As an incentive to the Government to further reduce construction costs, any savings that it may realize in the primary school construction program would be made available for building additional classrooms. Annex 3-5 shows the number of teachers employed in project schools by category and salaries. Annex 3-6 shows the alternative solutions for the pilot school building program. 3.11 In light of the Government's budgetary constraints and in order to prevent rapid deterioration of the school infrastructure, as part of the pilot school building program, cost-efficient methods of improving primary school maintenance would be developed and applied throughout the primary school system. Taking into account the experience gained in the pilot program, both with regard to low maintenance modes of school building and the mobilization of village efforts, the Education Projects Directorate would establish a school maintenance system that would be largely village-based and require minimal financial support from the Government. 3.12 The proposed IDA credit would finance: (a) a lump sum of US$1.1 million for the pilot program, with an estimated US$0.3 million for matching salaries; (b) civil works (450 classrooms and teachers houses and 150 wells) and professional fees; (c) equipment and furniture for the 450 new classrooms and their distribution costs; (d) salaries of teachers for those classrooms; and (e) funds to develop a svstem of school maintenance and repair and to implement this system in the prolect area. 3.13 During negotiations, the Government discussed with IDA how it plans to organize future primary school maintenance, with emphasis on village participation and disengagement of the central Government, and gave assurances that it will prepare and submit to IDA not later than December 31, 1985, a proposal for the financing and organization of periodic maintenance and repair of primary schools. 2. Institutional Development 3.14 To enable the Government to implement a sector financing strategy for accelerating the expansion of primary education, the central Institutions responsiblc for planning, managing and controlling educatiun costs would be strengthened and developed under the project. Specifically, the project would reinforce the planning capacity of the Educational Planning Directorate, strengthen the management expertise of the Guidance and Fellowships Directorate, improve the planning and monitoring capacity of the Rural Youth Training Directorate, and strengthen the operational capabilities of the new Education Project Directorate. The major functions of these four Directorates, their proposed work programs and staffing, and the assistance to be provided by the project are described below. - 11 - 3.15 Educational planning. To develop a capacity for primary and secondary eadcational planning and for financial planning and cost monitoring, and to improve decision-making in the reallocation of resources available to the sector and ensure their efficient use, the Educational Planning Directorate (para 2.17) would be organized and staffed to be able, in addition to its current main responsibilities, to prepare, follow up and review the implementation of policy meaEures relating to the financing of the expansion of primary education. The Directorate would, in addition to its regular administrative tasks, have to undertake to: (a) improve the reliability and timing of the analysis and publication of educational statistics; (b) complete a country-wide school mapping exercise for primary education; (c) carry out, in collsboration with the Pedagogical Tnstitute of Burkina, a study on the introduction of a double-shift system for primary schools; (d) conduct an organization and management study of the Ministry of National Education; (e) define the criteria for subsidies to private education in regard to total level of subsidies, subsidy level per student, and selection of the recipient schools; and (f) prepare, on an annual basis, a review of the education sector budget, aimed at increasing the trend line of budgetary allocations to primary education through a combination of measures. These measures would include an increase in the allocations for education at a slightly higher annual rate than the Government's overall budgetary increases, a decrease in the budget for fellowships for secondary and higher education, and an increase in the remaining budget for those two levels, at an annual rate slightly lower than the Government's overall budgetary increases. During project implementation, additional staff would be assigned to DPE in numbers and qualifications agreed upon between the Government and IDA (Annexes 2-6 and 2-11). 3.16 The proposed IDA credit would finance: (a) construction of an office building, to be shared with the Education Project Directorate (para 3.23), furniture, equipment and vehicles; (b) staff training and short-term specialist services; and (d) incremental operating expenditures (Annexes 3-3 and 3-4). 3.17 During negotiations, the Government submitted a decree reforming the system of subsidies to religious secondary schools. The subsidies will now consist of a flat fee paid for each student enrolled by the Government in those schools. In addition, the Government gave assurances that it will (a) define in a directive to be agreed upon with IDA and to be issued not later than June 30. 1986, the level of Government subsidies to private educatior; and (b) undertake with IDA, not later than April 30 of each year, an annual review of the expenditures and financing needs of the education sector with a view to providing for a reallocation of education budget resources in favor of, or an increase in funds allocated to, primary education. 3.18 Management of higher education. In order to improve management of higher education with the aim of improving the criteria for the award of fellowships and formulating a strategy for post-primary educational development, the project would strengthen the Guidance and Fellowships Directorate (para 2.17) in MESRS. This assistance would help to (a) establish a modern data storage/retrieval system to expedite the administration of fellowships and permit a more differentiated fellowship policy, and (b) carry out a study of national manpower needs and of post-primary educational development. The main tasks of the Directorate during project implementation would be to improve the organization and management of the fellowship files and the procedures linkling student school attendance and achievement to fellowships; propose new criteria for fellowship awards; analyze higher education costs and contribute to the preparation of the Government-IDA annual review of the education sector budget (para 3.17); and - 12 - underteke a manpower study and formulate a post-primary development strategy in collaboration with the Ministries of National Education, Agriculture and Livestock, and Planning. To this end, five additional high-level staff members would be recruited during the first two years of the project. 3.19 The proposed IDA credit would finance: (a) furniture, equipment and vehicles for the Directorate of Guidance and Fellowships; (b) staff training and short-term specialist services; and (c) incremental expenditures for the operation and maintenance of equipment (Annexes 3-3 and 3-4). 3.20 Rural Youth Training (FJA) management. In order to continue strengthening the FJA administration at the central and regional levels so that existing resources may be used more efficiently, develop the production and distribution of learning materials, establish a monitoring and evaluation system, and initiate studies for the future harmonization of the basic education system (primary education and FJA), the project would provide assistance to the Directorate of Rural Training and Organization (para 2.17). During project implementation, the Directorate's main task would be to establish an FJA management performance monitoring system; contribute to the preparation of the manpower study (para 3.18); collect, analyze and publish on a regular basis statistics an the FJA system and complete an evaluation of rural training through a sample of the FJA Centers; produce and distribute about 11.3 million leaflets and other learning materials; and organize, lead and provide technical information to a National Commission, which would direct a study on ways to harmonize the basic education system (para 2.22). 3.21 The proposed IDA credit would finance: (a) furniture, equipment and vehicles for the Directorate of Rural Training and Organization; (b) staff training and short-term specialist services; (c) salaries of two additional staff; and (d) incremental operating and monitoring expenditures. During negotiations, the Government gave assurances that it will (a) establish, not later than June 30, 1986, a National Comnission under the auspices of the Minister of Agriculture and Livestock to review ways to harmonize the systems of primary education and of rural youth training, taking into account the new objectives assigned to r17oMR; and (b) discuss with IDA not later than June 30, 1987, the results of the above- mentioned review. 3.22 Project management. To strengthen the operational capabilities of the new Education Project Directorate (DPR), the Directorate would receive assistance in the implementation and preparation of projects. At its full development, which is expected to be achieved by late 1985, it would comprise 14 technical/adminis- trative and 14 support staff; they would be organized into an Administration Division and a Construction and Equipment Division. Because of the wide geographic dispersion of the classroom construction sites (para 3.10), three provincial cells, with a staff of nine technicians (including three Dutch volunteers) for direct on-site supervision of civil works and supply management, would be attached to the Construction and Equipment Division. An important function of the Directorate would be to identify and prepare projects both for investment by the Government itself and by external agencies. Annex 3-7 provides an organization chart of the Education Project Directorate and the list of staff to be financed by the IDA credit. - 13 - 3.23 The proposed IDA credit would finance (a) construction of an office building, to be shared with the Educational Planning Directorate (para 3.16), a central storage facility in Ouagadougou, and three regional posts which would serve as headquarters for the provincial cells and as regionnl storage points; (b) furniture, equipment and vehicles; (c) staff training and specialist services; (d) the salaries of 25 national contract personnel; (d) operational expenditures; and (e) funds for project preparation work (feasibility studies, requirements surveys, architectural designs, and development of equipment lists). B. Project Cost and Financing Plan 3.24 The total project cost over the six years of implementation is estimated at US$23.2 million equivalent (net of taxes and duties), with a foreign exchange component of Us$14.9 million (64Z). Base cost estimates are in Feb.uary 1985 prices. The project would be financed by IDA (US$21.6 million, or 93% of total project cost) and the Government (US$1.6 million, in the form of incremental staff salaries and counterpart contributions for school maintenance and repair). The major assumptions in arriving at the cost estimates, as well as the detailed project costs by component and cost category and the way these would be financed, are given in Annex 3-8. 3.25 Recurrent costs. When fully developed, the project components under the responsibility of MEN would require annual budgetary allocations on the order of CFAF 530 million (US$1.1 million), in constant 1984 prices, to continue operation of the schools and institutions established or expanded under the project. These incremental costs would be equivalent to 7% of the Ministry's 1984 recurrent budget. While such an increase is feasible, the expected continued expansion of primary education will require stringent control of the entire education budget (paras 2.09-2.11). The recurrent budgetary implications of the components under the responsibility of MAE and MESRS are estimated at CFAF 60 million and CFAF 10 million (US$0.12 million and US$0.02 million) annually, or 2.4% and 0.3%. respectively, of their 1984 recurrent budgets. C. Project Implementation 3.26 Preparation. Each project component is supported by a detailed working paper, and educational specifications for the National Primary Teachers College have been prepared. Initial experience with the logistics of rural classroom construction is being obtained, and start-up of the proposed project is being facilitated, under Cr. 956-UV (Second Education Project). Under that project, US$1.3 million is being used to finance: initial operating costs and the purchase of start-up vehicles; furniture and equipment for the Education Project Directorate; early recruitment of two specialists for the Directorate; priority fellowships for staff of the Educational Planning Directorate and the IPB; architectural design work and bidding documents for the proposed project facilities which are to be completed by June 1985, and the construction of 10 primary school units in 1984/85 as a trial run. 3.27 Sites. Suitable sites are already available for civil works to be undertaken as part of the textbook development, educational planning, and project management components. Warehousing facilities for the textbook and primary school - 14 - construction components wjuld be built on the grounds of the Lyche Zends in Ouagadougou. Suitab3e sites for the three regional cells at Fada N'gourma, Kaya and Ouabigouya have been made available. The 150 villages to be included in the primary school building program have been identifled (para 3.10), and the provision of suitable sltes in the villages does not appear to present a problem. 3.28 Implementation responsibility. The main responsibility for the technical aspects of project implementation would be given to the relevant Directorates/Directorates General in the three participating Ministries. The largest project component, the primary school construction and maintenance program (para 3.09), would be under the-direct supervision of the Education Project Directorate, as would the primary teacher training component (para 3.02) and future project preparation. The Project Directorate would serve as liaison between IDA and the implementing agencies and would support all of them (except the FJA Directorate) in the areas of procurement, financial administration, documentation, monitoring and reporting. In view of the familiarity of the FJA Directorate with project implementation procedures, the role of the Education Project Directorate via-a-vis the FJA component (para 3.20) would be limited to liaison with IDA. Annex 3-9 shows the project implementation schedule. 3.29 Specialist services and fellowships. The project would finance a total of 209.5 months of specialist services and 402 months of foreign fellowships. Terms of reference for the specialist posts have been agreed with the Government. as have the scope and content of the fellowship program. During negotiations, the Government gave assurances that it will cause all staff having received training abroad financed under the project to remain in their assignments for a period of at least three years following the completion of training. (Details are in Annexes 3-3 and 3-4.) 1. Procurement 3.30 The following procurement arrangements would apply, with the figures in parentheses showing amounts to be financed by IDA: (Footnotes continued from facing page) h/ Local shopping and direct contracting on the basis of quotations from at least three reliable suppliers for items that cannot be grouped into bid packages of at least US$500. 1/ Comparative shopping and direct contracting on the basis of quotations from at least three reliable suppliers. / Foreign printing of textbooks. kl Direct contracts with publishers of suitable texcbooks for adaptation rights and textbook purchases. 1/ Contracts for specialist services valued at US$2.9 million equivalent and fellowships abroad: World Bank Guidelines for the Use of Consultants (April 1981). ml In-country fellowships. nl Including US$0.5 million for matching salaries under the pilot school building program. oX Contracts for office materials, spare parts, gasoline, other consumables and building maintenance that can be grouped into bid packages of at least US$15,000. - 15 - Amounts and Methods of Procurement (USS million) Project Element Procurement Methods Category ICB LCB Other N/A Total Civil Works and 3.0 b/ 2.9 c/ 2.5 d/ -- 8.4 Profeassonal Fees J/ (3.0) (2.99) (2.5) (8.4) Matching Contributions */ 0.2 bt 0.6 c/ 0.2 d/ -- 1.0 (0.2) (0.6) (0.2) (1.0) Furniture, Equipment 0.5 f/ 1.3 L/ 0.07 hl -- 1.9 and Vehicles (0.5) (1.3) (0.07) (1.9) Periodic Malntenance -- -- 1.2 11 1.2 and Repair (0.6) (0.6) Textbooks 0.5 / -- 1.3 kI - 1.8 (0.5) (1.3) (1.8) Specialist Services -- -- 4.0 1/ 0.3 m/ 4.3 and Fellowships (4.0) (0.3) (4.3) Salaries n/ I/ Project staff -- -- 0.8 0.8 _ =_ __ (0.4) (0.4) 2/ Teachers -- - -- 1.8 1.8 -1.2) (1.2) Operating Costs 1.5 o/ 0.5 d/ -- 2.0 (1.5) (0 .) (2L0) Total 4.2 6.3 9.8 2.9 23.2 a/ Contracts awarded during preparation (1984) after local prequalification. b/ Contracts for construction materials valued at more than US$50,000. cl Contracts for construction, construction materials, labor and transportation valued at between US$15,000 and USS50,000. d/ Comparative shopping and direct contracting on the basis of quotations from at least three reliable suppliers for items that cannot be grouped into bid packages of at least US$15,000. e/ US$1 million for constructing about 75 classrooms and supplementary facilities to experiment with various building standards under the pilot school building program and for financing civil vorks. wells, furniture and equipment to complete local school building efforts (para 3.10). f/ Contracts of US$0.5 million for equipment, Including vehicles, grouped into bid packages valued at more than US$50,000. All contracts for furniture (valued at USSI.3 million) and contracts for equipment that can be grouped into bid packages valued at between USS15,000 and US$50,000. - 16 - 3.31 Because of thelr relatively small ize and vide dispersion In remote areams civil works contracts would not attract overmeas foreign firms, and would be procured after local competitive bidding (LCb) according to procedures acceptable to IDA. However, construction materials, equipment, vehicles and foreign printing of textbooks would be grouped to the extent practicable to facilitate competition in bidding, and packages of US$50,000 equivalent or more would be awarded after International competitive bidding (ICB) according to procedures acceptable to IDA. Goods manufactured locally would be given a preference mrgin of up to 152 or the applicable cumtons duty, whichever io loss. Procurement packages (announcements, bidding documents and proposed awards) exceeding US$50,000 equivalent would be subject to TDA's prior review. For contracts valued at between US$15,000 and US$50,000 equivalent, two conformed copies of each contract vould be subject to post revlew by IDA before vithdrawal of funds from the Credit Account. Contracts valued at less than US$15,000 equivalent would be held by the Borrower for random review by IDA supervision missions and for the audit. During negotiations, the Government has confirmed Its intentlon to apply the procurement procedures outlined in Annex 3-10. 2. Disbursements 3.32 The draft disbursement schedule has been aggregated from estimates for the individual components. The following disbursement percentages would apply: Allocation and Disbursement of DA Credit Amount X of Expenditures 7tem (USS'000) to be Financed a) Civil works anl professional fees 6,060 100 b) Matching contrlbutlons 810 I1O c) Furniture, equipment *nd vehicles 1,340 100 d) School maintenance and repair 410 45 e) Textbooks 1,410 100 f) Specialist services and fellovships 3,530 100 g) Salaries (i) Project implementation staff 290 100 (ii) Teachers in project primary schools 820 65 h) Other operating costs 1,590 85 l) UTnallocated 5,340 Total 21 600 - 17 - 3.33 The disbursement rate for "Othe. operating costs" refets to expenditure including taxes and duties, to avoid cumbersome documentation. Annex 3-11 shovs the disbursement profile, and Annex 3-12 a sumary of Government contributions to the project. 3. Special Account 3.34 To facilitate the prefinancing of expenditures by the Government, an amount of US$750,000 would be advanced from the proposed IDA credit and deposited in a Special Account held in a local bank under the control of the Project Director. The Special Account would cover about three months of expenditures for: (a) daily allowances and reimbursement of travel costs for nationals attending seminars or undergoing training abroad; (b) teacher salaries; (c) purchase and transport of building materials; (d) labor contracts for civil works; (e) small civil works including school maintenance and repair, and furniture and equipment contracts; (f) operating costs of the total project; and (g) purchase of teacher manuals and transport of textbooks. 3.35 All expenditures from the Special Account, except for "other operating cost8," would be reimbursed by IDA on a net-of-tax basis. Reimbursement applications to IDA would be grouped into packages of at least US$30,000 equivalent and would be fully documented, except for expenses related to in-country training, staff salaries, and contracts valued at less than US$15,000 equivalent. These expenses would be reimbursed against certified statements of expenditures, for which documentation would be retained for review by IDA supervision missions and the project auditors. Reimbursement applications would also comprise a statement of account movements since the last application, with the balance certified by the local bank holding the account, and a reconciliation showing that the balance represents the original amount deposited in the account less payments awaiting reimbursement, or small working advances. Should any disbursements made subsequently be dissllowed by IDA, the Government would redeposit the corresponding amount. 4. Accounting, Auditing and Reporting 3.36 The Education Project Directorate would establish accounts for the individual project components and record all project expenditures in accordance with sound accounting practices. During negotiations, the Government gave assurances that these project accounts will be audited annually by an independent auditor acceptable to IDA and that certified copies of the accounts and the auditor's report will be forwarded to IDA for review by September 30 of each year. The auditor's reports will certify that funds disbursed against statements of expenditures were used for the purposes for which they were provided. 3.37 During negotiations, the Government gave assurances that the Project Director will (a) submit to IDA semi-annual progress reports throughout the project implementation period, the first report being due by January 31, 1986; and (b) submit to IDA within six months of the Closing Date (June 30, 1992) a final report summarizing the project outcomes and identifying problems that would be relevant for future projects. - 18 - IV. PROJECT BENEFITS AND RISKS 4.01 Benefits. The project would establish a framework for expanding primary education by (a)irestructuring and reducing costs of primary schooling through implementing cost-efficient modes of providing the major inputs (teachers, textbooks and classrooms), and (b) assisting in i:istitution-building efforts throughout the education system which would lead to a more efficient use of resources and make possible a gradual reallocation of furda i.t favor of primary education. 4.02 The direct physical impact of the project on the primary education system would amount tc sn expansion of existing capacities by about 13%. However, a more important long-range contribution would be iL.5 demonstration effect: the adoption of low-cost building techniques would kesp the investment costs necessary to achieve the 60% enrollment target for the year 2000 within a manageable size (about US$3.4 million annually by the end of the period, and less if the process of tapping local resources can be carried further than is at present envisaged), and the more cost-efficient combiuation of lower-paid teachers supported by adequate learning materials would mean a stabilization of recurrent unit costs at a level of slightly under US$30 per student by the year 2000. 4.03 Risks include the inadequate technical capacities of the maln institutions responsible for resource use planning in the sector, and the limited experience in school construction and project imrlementation in the Ministry of National Education. A sizeable staff training program for the implementing agencies and specialist services in key areas are included in the project to help overcome these handicaps. V. ACGREEMENTS REACHED AND RECOMMENDATIONS 5.01 During negotiations, the Government gave assurances that it will: (a) prior to December 31, 1986, issue a decree upgrading the primary teacher promotion examination (para 3.05); (b) not later than June 30, 1986, reorganize the Teaching Materials Production Department of the Pedagogical Institute of Burkina to establish an Editing Division and a Production Division with staffing in number and with qualifications satisfactory to the Government and to IDA (para 3.08); (c) not later than December 31, 1985, prepare and submit to IDA a proposal for the flencing and organizatlon of periodic maintenance and repair of primary schools (para 3.13); (d) define in a directive to be agreed upon with IDA and to be issued no later than June 30, 1986, the level of Government subsidies to private education; and undertake with IDA, not later than April 30 of each year. an annual review of the expenditures and financing needs of the education budget resources in favor of, or an increase in funds allocated to, primary education (para 3.17); - 19 - (e) establish, not later than June 30, 1986, a National Commission under the auspices of the Minister of Agriculture and Livestock to review ways to harmonize the systems of primary education and of rural youth training, taking into account the new objectives assigned to the Directorate of Rural Training and Organization; and discuss with IDA, not later than June 30, 1987, the results of the above-mentioned review (para 3.21); (f) cause all staff having received training abroad financed under the project to remain in their assignments for a period of at least three years following the completion of training (para 3.29); (g) carry out, by means of an independent auditor acceptable to IDA, an annual audit of the project accounts, and forward to IDA for review certified copies of the accounts and the auditor's report by September 30 of each year (para 3.36); and (h) submit to IDA semi-annual progress reports throughout the project implementation period, the first one being due by January 31, 1986, and submit within six months of the Closing Date (June 30, 1992) a final report summarizing the project outcomes and identifying problems that would be relevant for future projects (para 3.37). 5.02 Subject to the above assurances, the project constitutes a suitable basis for an IDA credit of US$21.6 million equivalent to Burkina Faso. WAPED April 1985 - 20 - ANNE 1-1 Page 1 of 2 BURKINA PRIMARY EDUCATION DEVELOPMENT PROJECT SOCIO-ECONOMIC BACKGROUND The Country 1. Burkina is one of the poorest countries in the world, and its poverty, as in most of the Sahelian countries, has its origin in the natural environment. Rainfall varies highly from region to region and from year to year, ranging from 100 mm in the far north, to 1200 mm in the southwest, with most cultivated land receiving between 600 mu and 900 mm. Soil quality is also highly disparate, although generally better in the southwest. Most of the available agricultural land consists of shallow soils, which are easily eroded and depleted of organic matter by traditional methods of cultivation. Few river systems have water throughout the year; the potential for irrigation and hydroelectric power is therefore very limited and costly to develop. Mining of known deposits, mainly zinc, manganese, phosphates and massive sulfide, is also costly and exacerbated by the country's landlocked position, some 600 km from the sea. Given its poor physical resources, Burkina's most important productive asset are the people. The Population 2. With an estimated population of 6.5 million in 1983 and an area of some 270.000 k1M2, the average population density is about 25 persons/km2. This varies greatly, however, with the southwest, north, and southeast being virtually unpopulated and density reaching 80 persons/km2 in parts of the central plateau. Ninety percent of the population lives in rural areas, spread over more than 7000 villages, 70% of them having less than 1000 people. This extreme dispersion poses considerable problems for the provision of basic social services such as primary education. 3. Burkina's population has had an estimated annual growth of 2.6Z in recent years. About one third of the natural increase has been offset by migration to neighboring countries-in particular to the Ivory Coast-a process which relieved population pressure on the central plateau and contributed significantly to Burkina's GNP. 4. As with all rapidly growing populations, the number of young people is rather high. According to the 1975 census, 45% of the population was below the age of 15 and 172 belonged to the primary education age group (7 to 12 year olds). At present, some 200,000 children reach primary school age each year. - 21 - AM= 1-1 Page 2 of 2 The Economy 5. Over 902 of the population derive their livelihood from agriculture and animal husbandry, a sector threatened by periodic droughts. Wage employment is insignificant (less than 50,000 in 1976) and largely accounted for by the services sector, In particular the Government. 6. In the absence of widespread urbanization, kinship networks are still intact. While poverty affects most people and the food balance Is always precarious-requiring periodic rellef efforts from abroad-there are no population groups living In a state of permanent destitution. However, continuous population growth and, possibly, diminishing prospects for migration could upset this tenuous balance in the foreseeable future. 7. Burkina's development perspectives are constrained by her meager known natural resources, her landlocked location, her poor level of human capital development, and the remoteness from major markets. Mineral deposits, notably of zinc and manganese, may offer some possibilities for non-agricultural development, but for the lnediate future the further growth and siprovement of the agricultural sector and the continued absorption of part of the excess labor force by neighboring economies appear to offer the sost realistic development prospects. 8. Although the economy has grown approximately three percent annually for the last two decades, it will be difficult to increase or perhaps even to maintain this rate given the weak and deteriorating physical resource base and the severe imbalance between the quality of human capital and the economy's need for it. To improve its long-term development prospects even modestly, the country will have to raise the productivity of Its own resources and develop human capital whether for domestic employment or for vork abroad. In the agricultural sector, further increases In production will require the reflnement of existing and adoption of new farming systems which combine Improved inputs with soil and water conservation and aim for the Integratlon of livestock raising with crop cultivation. This approach will place a premiu on trained manpower to disseminate the new farming techniques and on a minimally educated farm population to apply them. The gradual broadening of the country's slim Industrial base will also depend partly on the availability of a trained labor force. JAPED January 1985 - 22 - ANNEX 1-2 Page 1 of 2 BURtKINA PRIMARY EDUCATION DEVELOPMENT PROJECT BASIC DATA General GNP per capita (1982) US$ 210 Land area 274.000 km2 Population (1983) 6.5 million Population growth rate (natural) 2.6% p.a. Urban population growth rate 4.0% p.a. Life expectancy at birth 43 years Education and Training Gross enrollment in 1983 in public and private institutions: Z of Age Level Number % Female Group Enrolled Primary 251,269 37 18.4 Rural Youth Training (FJA) 15,634 9 - Secondary general 27,618 32 2.6 Technical and vocational 4,738 42 2.6 Teacher training 262 22 -- Higher education - University of Ouagadougou 3,086 22 0.06 - Abroad 1,318 n.a. 0.03 Teachers Primary 4.410 21 Rural Youth Training (FJA) 752 n.a. Secondary 757 - n.a. Technical 352 n.a. University (1982) 177 n.a. a/ Teachers in private schools estimated. - 23 - ANNEX 1-2 Page.2 of 2 Education Financing (1982) Central Government recurrent expenditures on education: As a percentage of GNP: 2.1 As a percentage of total reyurrent Government expenditure: a 21.7 Recurrent Costs per Student CUS$, 1982) a/ Primary 38 Rural Youth Training (FJA) 143 Secondary general 334 Secondary technical 369 bI Higher education 1,734 - a/ Public schools only. b/ Estimated. WAPED April 1985 BURKINA PRIlARY, XDUCATION DEVELOPMENT PROJECT,PROJET DE DEVELOPPEMENT DE L'ENSEIGNEINT PRIMAIRE STRUCTURE OF THE EDUCATION AND TRAINING SYSTEM/STRUCTURE 0R L#ENSEIGNEMENT ET DE LA FORKATION Ado thE4tIqt 1 g * to 10 2l 2 14 ii UlUo2553 14 Is t o 22 2n 4~~~~~~~~~~~~as tesde *1e e t_ - Vkal smrieuqu de lacitei.s at tc r-etlgt bIm floo kfnel Fearstau of |~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~el s E3er, ago_{ mlolas w~~~~~~~~~~~~~~~~~~~~t. C1 - ... tiUei.,, ornsinApiowIUIet k&t leeoles) of F.veewak. Swelgie asbciqesIIas6ta6ti . PastitIeu 0w ftp.k.t aeete Age 15 16 1? IV 31i | ^|"Wpitls *t_te"'. o EHd l clltls |j_est ':1r; I P FmahimtS t lc|e e td fv bul. tf al~ l.u:le.teeSaIgmeC tI migh Se. Tech. Ije.: Tas. Ipede V - E H wj~~~~~~~~l Catle.^ deee.Aeee. lteq:Ct VII 1w Se ji t." toeb.i
Groupe de la Banque mondiale · Staff Appraisal Report
Burkina Faso - Primary Education Development Project
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Groupe de la Banque mondiale
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Staff Appraisal Report
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Burkina Faso
Source
Banque mondiale