Burkina Faso - Fourth Education Project

Document of The World Bank FOR CFFICIAL USE ONLY ci /~ L- -/ L/ 7 Report No. 9119-BUR STAFF APPRAISAL REPORT BURKINA FASO FOURTH EDUCATION PROJECT APRIL 24, 1991 Population and Human Resources Operations Division Sahelian Department Africa Region This document has a restricted distribution and may be used by recipients only In the performance of their official du0es. Its contents may not otherwise be disclosed without World Bank anthorization.  CURRENCY EOUIVALENTS Currency Unit - CFA Franc (CFAF) US$1 = CFAF 284 (April 1991) WEIGHTS AND MEASURES Im = l.lyd 1 km 0.6 mi 1 m2 = 1.2 sq yards I km2 0 0.38 sq mi I ha = 2.5 acres ABBREVIATIONS AND ACRONYMS AfDB African Development Bank APE Parent/Teacher Association (Association des Parents d'Eleves) BAC Baccalaureate diploma BEPC Lower secondary school diploma (Brevet d'dtudes du premier cycle) CAP Certificat d'Aptitude Professionnelle CEP Certificat d'Etudes Primaires CET Lower Secondary Technical School (College d'Enseignement Technique) CIDA Canadian International Development Agency CONFEMEN Conference of National Education Ministers (Conference des Ministres de l'Education Nationale) CPGEE Committee for the Management of Educational Establishments (Comite Populaire de Gestion des Ecoles et des Etablissements) DAAF Directorate of Administrative and Financial Affairs (Direction des Affaires Administratives et Financieres) DEC Directorate of Examinations (Direction des Examens et des Concours) DEP Directorate of Studies and Planning (Direction des Etudes et de la Planification) DEPEP Directorate of Studies, Programs and Pedagogical Evaluation (Direction des Etudes, des Programmes et de l'Evaluation P6dagogique) DES School Publishing Directorate (Direction de l'Edition Scolaire) DESA Directorate of School Health and Hygiene (Direction des Etudes de la Santd et de l'Assainissement) DEUG Diploma in Jeneral University Studies (Dipl6me d'Enseignement Universitaire General) DGEP Directorate General of Primary Education (Direction Gdnerale de l'Enseigr.eraent Prirnaire) DOB Directorate of Guidance and Fellowships (Direction de l'Orientation et des Bourses) DPEBAM Provincial Directorate of the Ministry of Basic Education and Mass Literacy (Direction Provinciale du Ministere de l'Enseignement de Base et de l'Alphabetisation de Masse) DSP Directorate of Family Health (Direction de la Santd Familiale) - Ministry of Health and Social Action EDF Etropean Development Fund ENEP Primary Teachers College (Ecole Normale des Enseignants du Primaire) EPD Education Project Directorate FAC French Ministry of Cooperation (Fonds d'Aide et de Coopdration) FJA Rural Youth Training (Formation des Jeunes Agriculteurs) GTZ German Technical Assistance Corporation INA National Literacy Institute (Institut National d'Alphabetisation) INSE National Institute for the Science of Education (Institut National de la Science de l'Education) IPB Pedagogical Institute of Burkina (Institut Pedagogique du Burkina) MACP Ministry of Rural Cooperatives (Ministere de I'Action Cooperative Paysanne) MEBAM Ministry of Basic Education and Mass Literacy (Ministere de l'Enseignement de Base et de l'Alphabdtisation de Masse) MESSRS Ministry of Secondary and Higher Education and Scientific Research (Ministere des Enseignements Secondaire, Supdrieur et de la Recherche Scientifique) SNP National Service (Service National Populaire) Fiscal Year School Year January 1 - December31 September - June  BURKINA FASO FOURTH EDUCARION PROJC TABLE OF CONTENTS Page Nos. DOCUMENTSIN THF.PROJECT FILE ................................. i CREDIT AND PROJECTSUMMARY .......... ...................... ii-iv I. INTRODUCTION .............................................. 1 .THE EDUCATION SECTOR ................. ..................... A. Structure of the Education System .............1................. B. Main Issues in Education ........... ........................ 2 1. Low Leve! of Basic Education ............................. 2 2. Poor Quality of Education ............................... 3 3. Poor External Efficiency of Higher Education ................... 6 4. Budgetary Constraints and Inefficient Use of Resources .... ......... 6 5. Weak Planning and Management of Education .................. 8 C. The Government's Sectoral Strategy ................ 8 D. The Bank Group's Role ...................... 9 JII. HEPR SET ............................... ....... 1 A. Project Objectives and Description ........................... 11 B. The Investment Program ..11 1. Improving the Quality of and Increasing Access to Primary Education .11 2. Improving the Quality of General Secondary Education .18 3. Strengthening Key Sectoral Institutions .19 C. The Policy Measures ..20 1. Improving the Allocation and Increasing Efficiency in the Use of Soctor Resources .20 2. Promoting Private Initiatives in the Provision of Education. 21 D. Project Cost and Financing Plan ............ ............. 22 This report is based on the findings of an appraisal mission that visited Burkina Paso in June 1990, comprising Messrs/Mmes D. Hamilton (Education Planner, Mission Leader), B. Abeille (Architect/lmplementation Specialist), M. Zymelman (Principal Advisor in Education), G. Gauthier (Technical Education Specialist), B. MoU-Drueckar (Education Specialist-Consultant), C. Denning (Textbook Specialist-Consultant), L. Vandevelde (Educator-Consultant), and G. Alain (Higher Education Specialist-Consultant). Ms. Barbarm Searle, Principal General Educator reviewed the documents. Ms. S. Giroux provided secretarial support in the preparation of the report. Mr. T. Agueh and Ms. K. MarshaU arn the managing Division Chief and the Department Director, respectively, for the operation. This document has a restricted distribution rlnd may be used by recipients only in the perf :mance of their official duties. Its contents may not otherwise be disclosed without World Bank atstLiorization.  TABLE OF CONTENTS (Cont'd) IV. PROJECT IM PLIMM ON ........................................... 25 A. Status of Project Preparation and Readiness ........................ 25 B. Project Management ............ ......... 26 C. Procurement, Disbursement and Accounting ....................... 27 V. PROJECT BENEFITS AND RISKS ............... .................. 31 A. Benefits .............................................. 31 B. Risks . .............................................. 31 VI. AGREEMENTS TO BE REACHED AND RECOMMENDATION .... ........ 32 ANNEXES 1-1 Social Indicators of Development (1989) .34 1-2 Basic Data .36 2-1 Organization Chart of the Ministry of Basic Education and Mass Literacy ..................................... 37 2-2 Structure of the Education System .38 2-3 Statistical Profile of the Education System (Analytical Tables on Sector Issues) .42 3-1 Increasing the Availability of Textbooks and Teaching Materials in Primary Schools. 54 3-2 Primary School Classrooms Construction/Accroissement de la Capacite d'Accueil des Ecoles de l'Enseignement Primaire .62 3-3 Project Costs and Financing Plan .74 4-1 Supervision Plan .123 4-2A Summary of Local and Foreign Training .......... .................. 125 4-2B Summary of Local and Foreign Specialist Services ....... ............... 133 4-3 Disbursement Profile ....................................... 137 MAP: IBRD 22999  BURKINA FASO FOURTH EDUCAnON PROJECT DOCUMENTS IN THE PROJECT FILE 1. "CoOto. Ffiancement at Politique de l'Education au Burkina Faso", Atafn mingat and Jean-Pierre Jarousse, IREOU, Mao, 1987 2. "Etude Sur L'Enseignemont a Flux Multiplo au Burkina Faso", DEP, Ministere de l'Education Natioal, A0ot 1987 3. "Etude our l'Organisation et la Gestfon du Ministore de l'Education NationaL" DEP, Ministere do l Education NatIonal, AcOt 1987 4. "Etude Socio-Economique du Milieu Etudimnt A L'Universitd de Ouagadougou" DEP, Ninistire do l'Enseignement Supedrieur et do La Recherche Scientifique, Avril, 1988 5. "CoOts, Production et Difficuttis de l'Enseignement SupErieur au Burkina Faso", J.P. Jarcusse nd M.T. Rapiau, IREDU, Avril, 1988 6. Sdminaire NationaL sur t'Enseignement Superfeur au Burkina Faso - "Bilan et Perspectives" - Ministere de l'Enseignement Superiour et de la Recherche Scientifique, Avril, 1988 7. BURKINA FASO - 3ieme et 4ieme Projet Education, Rapport de Supervision du 3ieme et 4ieme Projet d'Education, Carmelle Derning, Book Development Council, London 8. "Diagnostic du Narchi du Travail et du Systime d'Enseignement Technique et de Formation Professionnelte, Kelly and Martin, BIT, 1988 9. Requtte de Financoment presentee 3 ta Banque Mondiale, Government of Burkina Faso, January, 1989 10. "Journ6e de Reflexion sur l'Enseignement au Burkina Faso" NEBAN and MESSRS, Mai, 1989 11. "Etude Architecturale sur les Savoir-Faire au BurKina Faso" CRATerre, Grenoble, Juin, 1989 12. "Science Education on the Secondary Level in Burkina Faso and Ivory Coast", Brit N. Holtedahl, Consultant, 1989 13. "Plan D'Amelioration de ta Gestion des Bourses Nationales et Etrangires du Secondaire et Stperiour" Dianda et al., DEP, MESSRS, Fdvrier 1990 14. wEsquisse de Programme de Construction et d'Equipement d'Infrastructures Scolaires, de Formation Initeiae et Continue des Personnets d'Enseignements et d'Encadrement Pour Is periode 1991/96" Dianda et al., DEP, MESSRS, Fevrier 1990 15. "Education de Base pour Tous au Burkina Faso" DEP, MEBAM, Fdvrier 1990 16. "Evaluation de Prototypes d'Ecole Primaire et de Logements de Maltres a Nomgane", CRATerre, Grenoble, Mars 1990 17. "Quantitetif et Estimation du CoOt du Projet", CRATerre, Grenoble, Mars 1990 18. "Amelioration de ta Qualitd de I'Enseignoment de Base", L. Vandevelde, ULS, Bruxelles, 190 19. "BURKINA FASO - Fourth Education Project-Textbooks and Teaching Materials", July 1990 20. "Amelioration de ta Quatitd de l'Enseignement Secondaire Base", L. Vandeveldo, ULB,Bruxelles, 1990 21. "Banque Mondiale-Mission d'Evaluation pour to Project d'Education IV au Burkina Faso" - Guy ALLAIM, July 1990:  - ii - BURKINA FASO EOURTH EDU!QATION PROJEC CREDI ANID PROJECT SUMMARY Borrowyer: Burkina Faso Beneficiaries: Ministry of Basic Education and Mass Literacy, and Ministry of Secondary and Higher Education and Scientific Research. Credit Amount: SDR 17.8 million (US$24.0 million equivalent) TmA: Standard, with 40 years maturity Project Objectives The project would assist the Govermnent in further improving the quality of primary education and increasing the errollment ratio from 31 % in 1989/90 to 40% by 1996/97, improving the quality of general secondary education, and strengthening key sectoral institutions by helping to: (a) Improve the quality of and increase access to primary education by: (i) upgrading teaching in schools; (ii) increasing the availability of good quality textbooks and teaching materials; (iii) increasing the number of primary school classrooms; (iv) improving students' health and nutritional status; and (v) promoting female participation in education; (b) Imrove the quality of general secondary education by: (i) upgrading the skills of teachers; (ii) strengthening the Secondary School Inspectorate; and (iii) increasing the availability of low-cost textbooks and teaching materials; and (c) Strengthen key sectoral institutions by providing support to the Ministries of Basic Education and Mass Literacy (MEBAM) and Secondary and Higher Education and Scientific Research (MESSRS) to further strengthen their capacity for policy formulation and implementation and to improve their operational efficiency. The project would Include key policy measures to: (a) improve the allocation and increase efficiency in the use of sector resources by increasing budgetary expenditures on primary education, increasing efficiency in the use of primary school teachers and classrooms, and reducing secondary and higher education student subsidies; and (b) promote private initiatives in the provision of education through incentives for establishing and operating private and community schools.  - ill - SUMMARY OF PROJECTCOST ESTIMATES (Net of Taxes and Duties) LOt EQUN TC1rL USS MUlion- 1. Jlpmgring Ouality of and Increasing Access to Primary 10 2 15 E-ducation 1.1. Upgrading the Quali.y of teaching (a) Improving the skills of teachers 3.4 0.2 3.6 (b) Strengthening school management & inspection 0.0 0.4 0.4 (c) Improving student assessment and examination 0.0 0.2 0.2 1.2 Increasing the Availability of Textbooks and Teaching Materials 1.1 4.8 5.9 1.3 Increasing the Number of Classrooms 5.7 12.2 17.9 1.4 Improving Students' Health and Nutritional Status 0.0 0.5 0.5 1.5 Promoting Female Participation in Education 0.0 0.2 0.2 2. Improving the Ouality of General Secondary Education Q.7 42 5. 2.1 Upgrading Teacher skills & school inspection 0.5 0.8 1.3 2.2 Increasing Supply of low-cost textbooks and teaching materials 0.2 4.1 4.3 3. Strengthening Key Sectoral Institutior 2.2 3.1. Further Developing the Planning and Management Capacity of MEBAM 0.2 0.6 0.8 3.2. Developing the Planning & Management Capacity of MESSRS 0.0 0.6 0.6 3.3. Education Project Directorate 0.8 1.0 1.8 Total Base Cost 1L12 Physical Contingencies 0.8 2.5 3.3 Price Contingencies 1.7 3.9 5.6 Total Project Cost Flinancing-Plan IDA 5.7 18.3 24.0 Kingdom of Norway 0.0 3.8 3.8 EC 2.1 5.2 7.3 CIDA 4.0 4.7 8.7 Local Participation 1.8 0.0 1.8 Government _. _. Q Total MA i, { stima Disbursemet _AIDA Fiscal Year 19993 19i4 i19 5 19 7 _i USS million- Annual 2.4 4.4 4.8 6.0 4.4 1.8 0.2 Cumulative 2.4 6.8 11.6 17.6 22.0 23.8 24.0  - iv . Economi Ro ogljum: Not Applicable Bmnefi: The project would assist i further developing human resources in Burkina Faso by increasing the level of basic education in the country, thus improving the overall quality of the labor force. The project would increase the primary school enrollment ratio from 31% in 1989/90 to 40% in 1996/97 by creating about 200,000 additional school places. This would imply a rapid increase in student enrollment from 470,000 in 1989/90 to about 800,000 in 1996 and I million in the year 2000. Introduction of multigrade and double-shift teaching would increase student enrollment by about 62,000 over the project period and 24,000 annually thereafter; lower pe. pupil costs would yield total cost savings over the project period of about CFAF 774 million (US$3.0 million) and CFAP 313 million (US$1.2 million) annually thereafter, and would also increase access to education in both sparsely populated as well as urban areas. Quality improvement in secondary education would help meet middle-level skill requirements by improving the employability and trainability of secondary school graduates. Reduction of student subsidies (including fellowships) in secondary and higher education *vould save about CFAF 3,000 million (US$11.5 million equivalent) over the project period, which could be applied toward improving the quality and quantity of education inputs. Targeting of fellowships would help direct students toward priority areas and reduce overcrowding in some areas. Incentives to promote private and community schools would help increase resources for the sector and improve utilization of these resources. In addition, efforts to improve knowledge and awareness of issues related to health/nutrition, population and the environment, and to increase female participation in the education system would have broad positive impacts on the society at large. The project would also help strengthen the institutional framework for effective policy development and implementation in the education sector. Rida: A major risk derives from difficulties the Government may face in meeting the conditions to increase budgetary allocations for primary education and in reducing student subsidies. This risk is mitigated by the Government's consensus-building approach toward policy changes through wide-ranging consultations, and initial steps towards that goal have proven successful. There is now widespread support for increasing allocations for primary education, which have been increased in the 1991 budget; also, the number of new fellowships awarded for higher education was markedly reduced in recent years. The Government's performance in meeting these conditions would be monitored during annual reviews of project implementation, and release of the second and third tranches of the SAL would be subject to the Government meeting these conditions. A second risk concerns the ability of communities to contribute the required 10% of school construction costs in cash or in kind. This risk would be addressed by duplicating the experience of the Primary Education Development Project, where communities were effectively mobilized to contribute materials and labor to school construction, and by limiting the contribution of communities to 40% of labor costs and 10% of total construction costs, which is less than the amount that can be contributed in unskilled labor or local materials. This risk would be further reduced by greater decentralization of the responsibility for the establishment and operation of schools to the Provincial Directorates. Furthernore, Burkina Paso has a strong tradition of successful community participation in similar construction works.  BURKINA-EASO FOURTH EDUCATION PROJECT I. INTRODUCTION 1.1 The Government of Burkina Faso has requested IDA's assistance in financing a project designed to help further develop good quality primary education, improve the quality of general secondary education, and strengthon key sectoral institutions. Total project cost is estimated at USS46.4 million equivalent (net of taxes and duties), with a foreign exchange component of US$32.0 million. The Government and local communities would contribute US$2.6 million equivalent. Co- financing is expected from the Kingdom of Norway (US$3.8 million equivalent), the European Community (EC) (US$7.3 million equivalent) and from Canada (CIDA) (US$8.7 million equivalent). The remaining US$24.0 million would be financed by IDA. 1.2 The proposed project would be IDA's fourth contribution to the development of education in Burkina Faso. The policy measures and investment program were developed through a dialogue based on sector studies prepared between 1987 and 1989. The social indicators of development for Burkina Faso are shown in Annex 14; and the basic data sheet is found in Annex 1-2. IH. THE EDUCATION SECTOR A. Structure of the Education System 2.1 The formal education system consists of: (a) six years of primary education, (b) seven years of secondary education, made up of two cycles of four and three years; and (c) higher education comprising 11 schools of the University of Ouagadougou; the National School of Administration; and three regional institutions ("ecoles inter-dtats") that provide higher technician training in hydraulics and rural engineering, radio communications, and engineering education. Priniry school teachers are trained at the "Ecole Normale des Enseignants Primaires" (ENEP) located near the capital. Admission to the one-year primary school teacher training program requires successful completion of the first cycle of secondary education (BEPC Diploma). The University's Institute of Science of Education (INSE) provides training for secondary school teachers. Private schools account for about 10% of enrollments at the primary level and 40% at the secondary level. Apart from the formal system, Ministries run in-house training programs. Madarassa schools, run by Muslim organizations to teach the Koran and basic education, are found in many villages and are financed from private resources, including external religious organizations. Burkina Faso's education system includes a rural youth training program ("Formation des Jeunes Agriculteurs" - FJA), which provides literacy training and basic agricultural skills In centers located throughout the country. The Ministry of Basic Education and Mass Literacy (MEBAM) and the Ministry of Secondary and Higher Education and Scientific Research (MESSRS) share responsibility for the formal education sector. The Ministry of Rural Cooperatives (MACP), together with MEBAM, is responsible for adult education and literacy. Communities participate in the financing and management of schools through the "Comites Populaires de Gestion des Ecoles et Etablissements" (CPGEEs) and the "Associations des Parents d'Eleves" (APEs). In Annex 2-1 is an organization chart of MEBAM. The structure of the education system is described in detail In Annex 2-2, and a statistical profile of the system is set out in Annex2.  -2 - B. Main Issues in Education 2.2 Introduction. Burkina Faso has made great strides in developing its education system since independence. The primary school enrollment ratio trebled from 5% in 1960 to about 15% in 1980, and doubled again in the last ten years to 31%. The enrollment ratio of secondary education also increased fromr. 4% in 1985/86 to 6% in 1988/89. However, as evidenced by the low enrollment ratio, access to primary education is limited, and this is compounded by unequal access for children in rural communities and girls. The quality of primary and secondary education is threatened by scarcity of school inputs and by inadequate supervision of teachers and monitoring of the learning process. There is also a growing excess supply of graduates from higher education. Institutional constraints limit efficient planning and management of the sector. 1. Low Level of Basic Education 2.3 Low and inequitable access to primary education. Burkina Faso's literacy rate of 13% is the lowest among the Sahelian countries (average of 25%). Its gross primary enrollment ratio of 31% (1988/89) is much lower than the average of 52% for the Sahel and 77% for the rest of sub- Saharan Africa. The enrollment ratio also varies widely among the provinces, ranging from 88% to 6%, and between the sexes - 37% and 23%, respectively, for males and females. The low enrollment ratio is largely due to inadequate supply of teachers and classrooms rather than to limited demand for school places. The average pupil/teacher ratio (57:1) is more than 30% above the average for the Sahel (43:1), and has been at this level since 1981/82. The average class size is 64, and 63% of all classes contain morc than 55 pupils. In addition, more than 60% of all primary schools have only three classrooms and are forced to adopt a system of alternate year intake for pupils. The lower enrollment ratio for girls is partly due to lack of school places and cultural attitudes toward girls' education in rural areas. The proportion of girls in urban schools is 49%, in contrast to about 28% in some rural areas. Parents in rural commun;.ies have lower expectations of modern sector employment for girls and prefer to educate boys when school places are scarce. In addition, some parents are unwilling to send children to non-religious sche"- or long distances to attend school, and also often prefer girls to stay at home to be prepared for marriage. To address the issue of girls' education, in 1989 the Government established within MEBAM the Service g Promote th-e Education of Girls to develop and monitor implementation of measures to improve female education. 2.4 Inaduaute development of adult edur,&Qn. To help improve the literacy rate, the Government is supporting the development of adult education with the assistance of several donors (among them, CIDA, as well as IDA through the ongoing Primary Education Development project). The National Literacy Institute (INA), under MEBAM, is responsible for literacy program design, development and production of materials, as well as training monitors and supervisors who run the programs. INA, in collaboration with other ministries, initially experimented with literacy programs six-weeks in duration, with limited success. Consequently, a new approach based on training duration of 4-6 months provided in literacy "centers" in the communities has been developed and is being tested. Successful implementation of these activities is, however, hampered by the lack of reliable data, as well as INA's inadequate institutional capacity for program development and supervision. As part of its renewed basic education development strategy, the Government has established an interministerial commission to address these issues and make recommendations on the future development of adult education, including the link between basic literacy and informal sector skills development, a national structure for integrating the efforts of the various ministries, and better coordinating the activities of the various donors involved in this area. The Government has expressed its intention to submit this plan to participating donors.  2. por Qualily of Education 2.5 Measured in terms of internal efficiency and examination pass rates, the quality of education is poor in both primary and secondary education. In prima,y c repetition rates range from 12% to 17% between Grades 1 and 5 and reach 43% in Grade 6. More than 30% of students drop out prior to Grade 6, and only 45% pass the final certifying examination (CEP). The low internal efficiency and poor quality of education are attributable to the poor quality of the teaching cadre, inadequate supplies of textbooks and teaching materials, insufficient pedagogical support and control, and inefficient and inappropriate monitoring and evaluation of student learning. The deficient nutritional and health status of primary school children also hampers student learning. 2.6 Poor quality of primary school teachers. Because of the high proportion of unqualified teachers and the lack of opportunities for continuing their education and training, the quality of the teaching cadre is poor. In 1988/89, 1,800 teachers (25% of the cadre) were untrained, mainly because of the low output of qualified teachers. Between 1984/85 and 1988/89 when, on average, 560 teachers were recruited annually, ENEP's capacity was only 350. Hence unqualified secondary school leavers and those required to performn "Service National Populaire" (SNP) are recruited to meet the teaching deficits. To address this issue, the Government plans to increase teacher training output to about 1,000 annually by establishing two new colleges, to be financed by OPEC and AfDB. Unqualified teachers are also encouraged to qualify through taking the teacher-qualifying examinations, but teachers have to prepare for ibis through self-study as there are no training programs Lo designed to assist them. 2.7 Inadequate supplies of textbooks and teaching materials. Through the ongoing Primary Education Development Project (Cr. 1598-BUR), new low-cost textbooks and teacher guides are being produced and distributed by MEBAM; however, the publishing program will not be completed under that project because of scheduling constraints. In add;ion, continued attention needs to be paid to firther reduc..ng the production and user-cost of textbooks and materials. As the number of textbook titles increases, the total cost of the textbooks will exceed what some families can afford, and the need to lower costs will become more urgent. Although textbook costs have been reduced, they could be fur;her lowered through less reliance on specialist publishing services and through more cost-effective manufacturing specifications. To achieve this, the local capacity for the production of textbooks and teaching materials needs to be further developed to limit costs due to copyright sharing (as some books are adapted from existing publications), and a book rental scheme needs to be introduced in the schools. The recently introduced system of book sales through Faso Yaar (a national food and materials distributor), private book stores for Ouagadougou and Bobo Diolasso, and Inspectorate offices for rural areas not served by Faso Yaar, will continue to operate in parallel with the proposed book rental scheme. A Textbook Fund has been established to help finance the re- snipply of books. As it was set up without adequate planning following a rather sudden decision to 'e11 books instead of loaning them to students, no clear regulations were established for use of the Fund; hence guidelines for its management have been established under the ongoing Primary Education Development Project to ensure that it is used only for the re-supply of books. In addition, management of the Fund is being upgraded to improve efficiency in the collection and use of revenues. With the introduction of the book rental scheme, the guidelines will be revised to take into account the requirements of the rental scheme. 2.8 Insufficient pedagogical support and control. The effectiveness and coverage of the Inspectorate system, which is being supported under the Primary Education Development Project with transportation and equipment, need to be further improved. Long distances between schools and regional directorates in some areas make school visits infrequent, and recommendations in reports  - 4 - of school visits have limited impact on school improvement decisions. The training role of inspectors should also be expanded to provide more effective support to new and unqualified teachers, particularly those in remote areas. Many school directors have limited skills in school administration or teacher supervision, especially in smaller schools where the most senior teacher assumes headship without formal training. The skills of these directors need to be improved to ensure efficient operation of these schools. 2.9 Inefficient and inappropriate monitoring and evaluation of student lening. While only 45% of Grade 6 students pass the CEP examination set by MEBAM to certify completion of primary education, between 70% and 80% are promoted between Grades 1 and 5. This may be partly attributable to the use of the CEP examination for multiple and conflicting purposes, as it also serves as a selection instrument for entry to secondary education. In addition, prior to Grade 6, monitoring of student learning is the responsibility of individual schools, which makes it difficult to compare student performance across schools; identification of weak schools is therefore difficult and hampers timely remedial action. The high proportion of unqualified teachers and scarcity of teaching materials also suggest that student assessment between Grades I and 5 may be inefficient as many teachers may have only limited skills in designing tests and do not have access to teaching materials to help them do so. Increasing attention is being paid to this in the new teacher guides being prepared under the Primary Education Development Project. The Government proposes : introduce better monitoring and student assessment systems to help improve student learning. 2.10 Deficient nutritional and health status of primary school children. Research findings on the relationship between nutrition and educational achievement show that malnourished students perform less well than well-nourished children. Protein energy malnutrition, iodine deficiency, intestinal parasites, and vitamin A deficiency have all been linked to diminished aptitudes and lower school attendance. A 1987 study on primary school pupils in foul provinces of Burkina Faso revealed that 18% to 46% suffered from acute malnutrition, and 35% to 68% of children between age 5 and 10 suffered from chronic malnutrition. Vitamin A and iodine deficiencies are particularly common among this age group, and about 90% of school children have a high parasite load (compared to 22-26% for Niger, Mauritania and Senegal), due largely to the scarcity of potable water and inadequate solid waste disposal in many communities. Malnutrition among school children is also attributed to seasonal food shortages in some parts of the country as well as to traditional practices that prevent the younger members of a household from obtaining a balanced diet during family meals. 2.11 The Government has started addressing these issues, but efforts made so far need to be ftulrther improved and expanded. The school lunch program, supported by the World Food Program, is inadequately prepared to compensate fully for the students' poor nutritional status. MEBAM is working with Parent/Teacher Associations (APEs) to improve the diet with vegetables. A pilot program for distributing vitamin A to all children age 6-10 has been implemented in four of the 30 provinces with the help of UNICEF. The future of the program, which is being implemented by the Directorate of Family Health (DSF) and its Regional Offices in the four provinces concerned, is uncertain because of inadequate funding and the effort needed to develop the distribution capacity of the Ministry of Health to deliver the vitamin A capsules to all 30 provinces. Until this capacity can be developed, the Government proposes to distribute the capsules to students through the school system. Public information programs on improved nutritional/health practices are often limited to urban areas and are of variable quality, and efforts to Include aspects relating to nutrition and the environment in school programs are still at an embryonic stage. The UNICEF materials ('Facts for Life") which provide prototype resource materials in nutrition and health to be used in developing public information and school programs has been introduced in Burkina. The Ministry of Health and  . 5 - Social Action plans to use these materials to prepare an information program for adults, while MEBWM will use the materials for integrating nutrition topics in teacher and student materials. 2.12 In secondary education, 92% and 84% of all students complete the first and second cycles, respectively, but the overall internal efficiency in both cycles Is low. In the first cycle, pupil years per graduate is 9.6 instead of 4 because of high repetition rates (which range from 20% to 35% between year one and four), and a low pass rate of 41% in the BEPC examination (1988). In the second cygle, pupil years per graduate is 8.5 instead of 3. Similar to the first cycle, repetition rates are high, ranging from 16% to 35%, and success in the BAC examination is low 30% (1988). The lowest pass rates are recorded for science students (25%). A new science curriculum was introduced in 1986/87, but overall quality is adversely affected by inadequate learning materials and equipment, shortages of qualified teachers, and limited pedagogical s" port of teachers. 2.13 Scarcity of learning materials and equipment. Most students, especially those in the first cycle of secondary education, do not have textbooks because of their high cost and limited availability outside the main urban areas. The complete set of textbooks per grade costs about CFAF 20,000 (US$77 equivalent) annually, which many students cannot afford. The high textbook costs are partly due to the inadequate procurement and distribution system (para 2.7). Only a few suppliers are able to import textbooks because of lack of capital, and the books are sold to students through several middle-men who each take the allowed mark-up of 26.5%, making the cost of books prohibitive both to students and smaller dealers outside the main urban centers. To alleviate this problem, some schools have established student book loan schemes and book replacement funds replenished from moderate rental charges. Many schools, however, lack the initial resources to establish such schemes. 2.14 Laboratory equipment and materials are also in short supply. Although most public secondary schools have laboratories, only a small number are adequately stocked and even these do not operate fully because of the high cost of supplies and limited maintenance. Given the current budgetary constraints and difficulties in maintenance of equipment, it is unlikely that reaching science by providing each student with a work space and complementary equipment and supplies would be a viable option. The Government therefore proposes to emphasize the provision of basic equipment and materials for use by teachers in demonstration, especially in the first cycle where practical work by students is less critical. 2.15 Lack of qualified teache-rs. In 1988/89 only 44% of secondary school teachers were qualified, and about 90% of these teachers were qualified to teach only in the first cycle. The low proportion of qualified teachers is explained by the absence, until 1986, of pre-service training for secondary school teachers and the inappropriate structure of the course established then. The three- year pre-service training established at INSE for students with the BAC provided pedagogical training, but also duplicated academic subjects taught in other departments of the university. The length of the course limited the output of teachers. New regulations approved in March 1989 provide for recruitmont of students with the Diploma in General University Studies (DEUG) and higher to attend a one-year course in pedagogy. The new regulations also require specialization in two or three subjects to improve teacher utilization. INSE needs to be supported with staff training and equipment to implement this new policy. 2.16 Inadequate pedagogical support of secondary school teachers. The system for monitoring school performance and providing support to teachers is well designed, but the number of inspectors and the facilities at their disposal are inadequate to meet the needs of secondary education. The teacher/inspector ratio is high: 209:1 for French, 103:1 for natural sciences, and 330:1 for math.  -6 - Inspectors also lack transportation and other logistical support to visit and observe teachers; supervision of individual teachers is therefore infrequent. To cope with the large number of unqualified teachers, emphasis is placed on in-service training; but these training sessions are held only once every two years in each subject. 3. Poor External Efficiency of Higher Education 2.17 Higher education responds slowly to changes in the demand and supply of trained manpower in Burkina, and the market for this type of manpower is increasingly characterized by surpluses rather than shortages. In the period immediately following independence, provision of higher education was very limited, and there were severe shortages of trained manpower f'ir the civil service and the modern sector; priority was therefore to expand secondary and higher education. However, since 1975 employment of professionals has been threatened by the modest growth of the modern sector economy in contrast to the more rapid growth of secondary and higher education. Between 1975 and 1985, employment of professionals grew at about 4.6%, reaching 23,000 in 1985 (18,000 in mid-level jobs and 5,000 in senior professional jobs), while about 10,500 graduates were produced by secondary schools (more than the number of new jobs created over the period), 4,000 of whom w e,nt on to graduate from the university. The Govermment has started addressing this issue by discontinuing the automatic recruitment of graduates into the civil service and giving priority in fellowship awards to students wishing to study the sciences and math; it has also started limiting the number and reducing the benefits of fellowship awards to reduce incentives to pursue university education. 4. Budgetary Constraints and Inefficient Use of Resources 2.18 The share of primary education in total recurrent education expenditures increased from 41% to 43% between 1988 and 1990, which helped increase the enrollment ratio from 28% to 31% during the same period. However, the enrollment ratio is still low compared to the 52% average for the Sahel region. Further increase of the enrollment ratio has been constrained by high average teacher costs in spite of a teacher/pupil ratio of 1:57 and a 3.4% annual growth of the school-age population. 2.19 Teacher salaries in Burkina are also high, averaging 13 times the GNP per capita, compared to 8.4 times the GNP per capita for the Sahel. To reduce teacher costs and increase output, the Government as part of the Primary Education Development Project reduced the training period for new primary school teachers to one year, starting in 1985, and reclassified them on a lower salary scale. However, additional measures need to be taken to increase the enrollment ratio from 31% to 40% by 1996/97 as planned. Simulations of future growth of primary education show that if current financing patterns continue until 2000, the enrollment ratio would fa;l to about 25% by that year. Also, as primary education expands to low population density areas, unit costs are likely to rise and efficiency measures such as multigrade teaching would need to be introduced to control costs. In urban areas, increasing the enrollment ratio, which is still below 100%, could be more easily achieved by introducing the double-shift system. 2.20 High Der student costs in secondary and higher education. Secondary school per student costs in 1987 were over two times the GNP per capita-the highest in the Sahel-and more than double the average for the region. Per student costs in higher education are 11.8 times the GNP per capita, the highest in the Sahel, and over 1.5 times the average for the region. These high per student costs are the result of generous student subsidies and inefficient use of resources at both levels. In Burkina, Government expenditures on student subsidies (fellowships, cafeteria, medical care, travel,  -7- etc.) in secondary ard higher education are, in fact, the highest in the Sahel. In 1989/90, expenditures on student subsidies accounted for 31 % of total public expenditures. on education ann 30% and 80%, respectively, of expenditures on secondary and higher education (comparable figures for Sahelian countries are 159% and 57%, respectively.) The high level of expenditures on student subsidies has been due to: almost guaranteed fellowship awards to all "Bacheliers" 21 years of age and younger, who comprise more than 99% of university entrants; high levels and attractive conditions of fellowship awards; and waste due to inefficient management of the fellowship system. 2.21 To address this problem in secondary education, student boarding has been abolished, and the proportion of students awarded fellowships was reduced from 68% in 1970 to 38% in 1986. In higher education, the Government limited the number of new "Bacheliers" awarded fellowships to 1,000 in 1988 and 750 in 1990 instead of about 2,000 who qualified for fellowship awards. Nevertheless, total expenditures on fellowships have continued to increase (by 6% between 1989 and 1990) because of increases in the costs of fellowships in some countries outside Burkina Faso. 2.22 Inefficient use of resources. High teacher cost in secondary education (26 times the GNP per capita and double the average for the Sahel) is explained by the single subject specialization of teachers, which limits their use in small schools. In higher education, high per student costs are also generated by underutilization of staff and high average salaries. The student/staff ratio (15: 1) is slightly below the average for the Sahel (17: 1), but average staff salaries are much higher-46 times the GNP per capita, compared to 33.5 times the GNP per capita for the Sahel. The high average salaries are due to the small number of hours that teaching staff are contracted for, which necessitates widespread use of part-time staff and overtime payment to regular staff. The high proportion of non- teaching staff at the university also contributes to the high costs. As a first step to address this problem, the university reviewed its operations in 1988 and has introduced a new system to monitor the use of staff time and facilities to identify inefficiencies and improve the management of higher education resources. 2.23 Constraints to the develoDment of private sector and community education. The growth of private sector education has been hampered by a decision in 1985/86 to impose fee ceilings in private educational establishments. Between 1970/71 and 1985/86, the private sector contributed increasingly to the provision of education. At the primary level, this sector's share of total enrollment increased from 4% in 1970 to 9% in 1986, while in general secondary education its contribution increased from 36% to 49% over the same period. However, in 1985/86 the primary level fees were reduced to CFAF 10,000 from 30,000 and at the secondary level to CFAF 40,000 from 70,000. Consequently, although at the primary level the share of the private sector has remained at 9%, schools have had to increase the student/teacher ratio from 50:1 in 1984/85 to 70:1 in 1988/89 in order to generate enough revenues to operate. At tbe secondary level, the share of the private sector fell from about 49% in 1985/86 to 40% in 1987/88, partly because the growth of enrollments in private general secondary education fell from about 23% annually between 1983/84 and 1985/86 to about 7% annually between 1985/86 and 1987/88. An increase in the fee ceilings for private establishments introduced in 1988 seems to be reversing these trends, with an increase of 23% in enrollments in private general secondary education between 1987/88 and 1988/89. 2.24 Limited community participation in education. Increasingly, communities build and sometimes operate their own schools (including paymnent of teacher salaries in a few instances) at both the primary and secondary level. Madarassa schools (para 2.1), an important type of community school, have no fixed school curriculum or calendar, a limited number of textbooks, and poor quality teachers. Parents would like Government support to improve the operation of these schools so that they can provide adequate primary education as well as reli;lous education. The Government has  -8- initiated discussions with concerned organizations on appropriate kinds of support to make these schools more effective. Communities, which are largely responsible for school construction, make considerable efforts to construct new classrooms but are inhibited by high costs and limited construction skills. Under the Primary Education Development Project (Cr. 1598-BUR), construction costs have been reduced and the transfer of construction skills to communities has increased; however, this new approach to school construction needs to be transferred to a wider range of communities. 5. Weak Planning and Management of Education 2.25 Progress has been made under the ongoing Primary Education Development Project to improve MEBAM's planning capacity. Educational data are now computerized and published on a timely basis, and the Ministry has also started contributing to policy analysis and development. Further staff training and experience would help it to play a more effective role in this area. The Ministry is also concerned that its present organizational structure impedes timely and efficient decision-making. The Directorate General of Primary Education (DGEP) and the Pedagogical Institute of Burkina (IPB) are considered too large to supervise the majority of the directorates of the Ministry, which slows down decision-making. In addition, MEBAM would like to integrate project preparation and implementation more effectively into the Ministry and also improve aid coordination. A consultant is being recruited under the ongoing project to advise on restructuring the Ministry. In addition, the Planning Unit of MESSRS, established in 1988, has been hampered by frequent changes in staff and location; it has thus been difficult to establish an effective planning structure. Strengthening the analytical and management capacity of these units to design and implement policies and investment programs is therefore needed. C. The Government's Sectoral Strategy 2.26 The Government's strategy for the education sector aims to increase the level of basic education in the country, including adult education, and improve the quality of education at all levels. Special emphasis is also being placed on improving access of females. In addition, the strategy seeks to increase both private and public sector resources devoted to education, and increase efficiency in the use of those resources. The Government aims to promote socioeconomic development through the integration of population, health, nutrition and environmental education into school programs. Significant progress is being made in implementing this strategy and the primary school enrollment ratio continues to increase (para 2.18). The share of the education sector in the Government budget increased from 22.6% in 1988 to 23.8% in 1990, and the share of primary education in the education budget increased from 41% to 43% over the same period. The Government has also raised the fee ceilings for private schools, which resulted in increasing their growth rate between 19b8 and 1990 (para 2.23). Increased efficiency in the use of sector resources is being achieved by: (a) reducing the unit costs of primary education through restructuring teacher training, reclassifying entry-level teachers to a lower salary scale, and introducing lower cost textbooks and school construction methods; and (b) controlling expenditures on secondary and higher education fellowships through limiting the number of fellowships awarded annually. To improve quality at the secondary level, the curriculum is being revised to emphasize science and math, and the teacher training programs have been restructured to increase the output of qualified teachers. In technical secondary education, the training programs are being revised and shortened to make them more responsive to skill demands and more cost effective. A comprehensive review of informal sector training is also being carried out to develop an appropriate strategy for the sub-sector. Adult education programs, including the FJA program, are being improved and expanded to better serve the needs of adults. To expand implementation of its strategy, the Government proposes to improve the quality of education and  Increase the enrollment ratio of primary education from 31 % to 40% in 1996, and 46% by the year 2000. This would imply a rapid increase in student enrollment from 470,000 in 1989/90 to about 800,000 in 1996, and 1 million In 2000. In addition, increasing attention will be given to improving the efficiency, quality and relevance of post-primary education and to increasing the role of the private sector and communities in the provision of education. D. Bhe Bank Group's Role 2.27 This would be the fourth IDA-financed project in the education sector in Burkina Faso and the second that supports formal education system. The First Education Project (Cr. 430-UV for US$2.8 million), closed in November 1980, was designed to (a) support informal sector training by providing rural youth with basic literacy and agricultural skills and training agricultural managers; and (b) strengthen the teaching of science in secondary schools. The Second Education Project (Cr. 956-BUR for US$14.0 million), closed in 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 ongoing Primary Education Development Project (Cr. 1598-BUR for US$21.6 million), signed in June 1985, supports 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 MEBAM, MESSRS and the Ministry of Rural Cooperatives. 2.28 The Project Completion Report of the First Education Project states that the project succeeded in providing rural youth with basic literacy and agricultural skills as a second-chance alternative to the traditional primary school, but that it was too early to judge whether the program had succeeded in encouraging rural youth to stay on the land and become more productive. The science laboratories financed under the project were also well designed and cost effective, but only five of the 18 planned laboratories were constructed, due to implementation delays, and insufficient attention was paid to future equipment maintenance and teacher training in the use of the new equipment. Training of agricultural managers went considerably beyond appraisal estimates; the training programs were well designed and implemented, although the ratio of trainers to trainees was high. 2.29 The Second Education Project assisted in consolidating the rural youth training program, strengthening its institutions, and improving the skill level of its staff, thereby making a significant contribution to the productivity of communities and improving their living conditions. It also upgraded the Public Works Training Center by improving its physical facilities and providing training and equipment. However, the Project Completion Report concluded that the unit costs of training were too high and should be reduced if the program were to be expanded. Also, attainment of the project objectives was hampered by conflicting views of the FJA program as, on the one hand, skill training for rural youths and on the other hand as an alternative to basic education for rural children; parents in particular held the former view and wanted formal primary education for their children. In preparing the Primary Education Development Project, IDA concluded that although priority should continue to be on the development of basic education, this should be pursued through expansion of primary schooling rather than through the FJA system, because of the non-replicability of the latter on a large scale. 2.30 Implementation of the ongoing Primary Educatior -nject is now proceeding at a steady pace, following a difficult start-up period (up to 1988) ca sed y indecision on the part of Government. All major contacts for civil works, materials, textbooks, furniture, and equipment have  - 10- been awarded; and about 75% of available funds have been committed. Similarly, disbursement rates, which had lagged behind commitments (in part, due to an estimated 37% increase in the US dollar value of the SDR credit amount), are now back on track. In ternis of meeting its objectives, the project (which is expected to close in July 1992, as scheduled) has made considerable progress in helping the Government to achieve major efficiency gains through reducing unit costs of primary education, contributing to a significant expansion of enrollment at this level, and improving overall management of the education sector. Specifically, the training period for new primary school teachers has been reduced to one year, and they have been reclassified on a lower salary scale. The cost of textbooks has been reduced to about 30% of previous prices, and unit costs of primary school construction have decreased by about 50% setting the stage for expansion of and quality improvements in the education system. 2.31 The Fourth Education Project will build directly on - and seek to carry further - the positive results of previous and ongoing investments in the sector, particularly in terms of cost savings and quality improvements. Achievements in reducing costs will continue to be made through the introduction of multigrade and double-shift teaching. Moreover, measures aiming to further increase the involvement of communities in the provision of primary education will be provided for with a view to further expanding access to education of presently underserved population groups. 2.32 Rationale for IDA involvement. The Bank Group's strategy supports the high priority given by the Government to the development of human resources. In the education sector, because of the low primary school enrollment ratio, emphasis will continue to be on expanding access to and improving the quality of primary education to raise the general educational level of the population, and thereby their productivity, and to facilitate the introduction of improved technologies. Support for post-primary education will aim to improve the overall quality of general secondary and higher education, and to help design and implement good quality, low-cost training programs to meet basic technical skills requirements. As concerns sectoral reforms, prospects for further improvements and expansion in the scope of education reforms have been firmed up following discussion of recently completed sectoral analyses and investment priorities among the Govermment, IDA, and other donors. Given the financial constraints and inefficiencies that inhibit orderly and sustained development of the education sector, IDA would assist the Government in introducing specific reform measures, including: increasing resources for primary education and improving effectiveness in the use of those resources; limiting expenditures on student subsidies in secondary and higher education; and promoting private initiatives in the provision of education. The project would thus complement corresponding efforts being made at the macroeconomic level. 2.33 Assistance from other donors. Several donor agencies are providing assistance to the development of the education sector in Burkina. The Government of Austria is supporting the improvement of technical education and training through teacher training, and is also providing technical assistance, equipment and supplies for the "Centre Austro-Burkinabe"; GTZ is helping develop artisanal and informal sector training; and FAC is providing technical assistance personnel. In addition, CIDA is financing in-service teacher training for primary schools; the development of a system for certification of skilled workers; and quality improvements in basic education. AfDB and the OPEC Fund are financing the construction and equipping of primary school classrooms; and the Swiss Government is providing assistance to the development of adult education.  - I1 - Ill. THE PRiOJECT A. proiect Objectives and Description 3.1 The project would assist the Government in further improving the quality of primary education and increasing the enrollment ratio from 31 % in 1989/90 to 40% by 1996/97, improving the quality of general secondary education, and strengthening key sectoral institutions by helping to: (a) Improve the quality of and increase access to primary education by (i) upgrading teaching in schools, (ii) increasing the availability of good quality textbooks and teaching materials, (iii) increasing the number of primary school classrooms, (iv) improving students' health and nutritional status, and (v) promoting female participation in education; (b) Improve the quality of general secondary education by (i) upgrading the skills of teachers, (ii) strengthening the Secondary School Inspectorate, and (iii) increasing the availability of low-cost textbooks and teaching materials; and (c) Strengthen key sectoral institutions by providing support to the Ministrias of Basic Education and Mass Literacy (MEBAM) and Secondary and Higher Education and Scientific Research (MESSRS) to further strengthen their capacity for policy formulation and implementation and to improve their operational efficiency. 3.2 The project would include key policy measures to: (a) improve the allocation of and increase efficiency in the use of sector resources by increasing budgetary expenditures on primary education; increasing efficiency in the use of primary school teachers and classrooms and reducing secondary and higher education student subsidies; and (b) promote private initiatives in the provision of education through incentives for establishing and operating private and community schools. B. The Investment Program 1. Imoroving the Ouality of and Increasing Access to Primary Education 3.3 The five sub-components of this component are described below. a. Upgrading the Ouality of Teaching 3.4 This sub-component would (a) improve the skills of teachers, (b) strengthen the primary school inspectorate, and (c) improve student assessment and educational evaluation. The strategy for upgrading the skills of teachers would be to train inspectors and school directors as trainers for unqualified teachers and SNP personnel in the programs to be financed by the project, train teachers while carrying out their routine functions, and decentralize training to the 62 districts. The training programs for untrained teachers and SNP personnel would integrate teaching methodology, including multigrade and double-shift teaching, promotion of female education, nutrition and health education, environmental education, and student assessment. Orientation to the new teaching materials produced under the project would be carried out separately, as they are geared toward teachers in the different grades. 3.5 Improvine the skills of teachers. Complementing the Government's efforts to expand teacher training capacity (para 2.6), the project would upgrade the skills of about 4,000 untrained  - 12 - teachers (those already in service and those to be appointed between 1990/91 and 1996/97), and provide orlentation training for about 1,100 new SNP teachers annually during the project period. The program for untrained teachers would focus on mastery of the primary school curriculum and materials, teaching methods (including multigrade and double-shift), school and classroom organization and management, and student assessment. The program would be taught over a 14- month period in each of the 62 districts starting in July of each year, starting with a three-week seminar, followed by 12 months of self-study supervised by inspectors and school directors, and completed by another three-week seminar the following July. Participating teachers would qualify by taking the teacher certification examination, as is currently the practice for untrained teachers. Requirements for enrollment in the course would give preference to teachers with one year of teaching experience. The program would start in school year 1992/93 with about 900 teachers (about 15 per district) from the stock of 1,800 untrained teachers in 1990/91. In the second year of the program, the second group of 900 teachers from this group would be trained, along with about 500 new unqualified teachers appointed in 1991/90 (total 1,400). About 500 new unqualified teachers would be trained annually in 1993/94 and 1994/95, and 250 annually from 1995/96 when graduates from the new ENEP start joining the teaching force, increasing the number of qualified teachers appointed annually to about 700. Training for the 1,100 SNP teachers to be recruited annually would be conducted in two-week seminars held in the 62 districts for groups of 15-20 teachers, to familiarize them with the primary school curriculum and teaching skills. The Directorates of Teacher Training and/or Primary Education and the Primary School Inspectorate would be responsible for planning and implementing the program. The DroQect would finance equipment and operating costs related to running the teacher training program, as well as a 25% salary supplement for teachers participating in the double-shift program (para 3.31 (b)) (total base cost US$3.6 million). 3.6 Strengthening primary school management and inspection. To improve school management and teacher support, the project would support training for school directors, inspectors and trainers of inspectors, and logistical support for the Primary School Inspectorate. The training programs for school directors and teacher supervisors would focus on school management, teaching methods (including multigrade and double-shift teaching), student assessment and evaluation, and teacher supervision. The two-week training for school directors would be provided by the inspectorate staff in the districts, and would start during the Easter vacation in 1992 with the training of about 2,000 existing school directors (about 30 per district), followed by annual training sessions for new school directors (about 200 annually). Training of about 200 inspectors and pedagogical advisers would be conducted in annual one-week seminars held at three sites. The objective of their training would be to develop their skills as trainers, given their previous experience as teacher supervisors. Staff of the Directorates of Teacher Training and of Primary Education would be responsible for planning and implementing this training; they would be prepared in three refresher training seminars, to be held for about 120 staff in 1992, 1994 and 1996, and in 12 six-month regional fellowships. 3.7 To strengthen the Primary School Inspectorate, the project would help improve its operational guidelines and would provide logistical support for existing Inspectorate offices and equipment and furniture for the proposed ten new Inspectorate offices. Improvement of the guidelines for teacher supervision and school inspection would include procedures for monitoring (a) the participation of girls in the education system, (b) the program for improving students' health and nutritional status, (c) implementation of multigrade and double-shift schools, and (d) school and community collaboration. To implement this sub-component, the Droiect would finance operating costs for running training seminars, fellowships for trainers, and equipment, vehicles and logistical support for Inspectorate offices and for coordinating the program (total base cost US$0.4 million).  - 13 - 3.8 Improving student assessment and examinations. To improve student assessment and examinations, the project would support the use of exercises, tests and student assessment as tools for teaching rather than simply for grading students. Exercises and test items to be included in the new teaching materials being produced for schools would provide a guide to teachers in the development and scoring of tests and school-based examinations. Standardized testing will be introduced in Grade 3 as a diagnostic tool to assess and compare student performance across the country and identify problem areas in the curriculum prior to Grade 6. The results of this test along with other school characteristics will be used to identify schools which need special assistance. The CEP examination will be redesigned to comprise tests to certify completion of primary education and for selection for entry into secondary school. To ensure that the results of student and school evaluation are taken into account in decisions to improve quality, and to assess the impact of new policies on the system, MEBAM's Directorates of Examinations (DEC), Primary Education and Planning would collaborate to analyze the data and make recommendations. DEC staff would be trained in assessment and evaluation skills, and provided with a guide to examinations, materials and equipment to help in the administration and analysis of examination results. During negotiations the Government gave assurances that it will submit to IDA for review by March 31, 1992, the draft rules governing the standardized student assessment in Grade 3, and the improved examination combining certification of completion of primary education and entry into secondary school; and based on agreements reached following the review, it will approve these regulations by June 30, 1992, and begin implementing them in school year 1992/93. The project would finance fellowships for staff of the Department of Evaluation, specialist services, and equipment (total base cost US$0.2 million). b. Increasing the Availability of Textbooks and Teaching Materials 3.9 To help ensure the regular supply of low-cost textbooks and teaching materials, a Book Publications Commission, comprising DEP, DAAF, DES, DGEP and DEPEP with the Secretary General as President, would be established to advise on and coordinate the activities of the units responsible for textbook development and distribution, including the Directorates of Publishing (DES) and Administration and Finance (DAAF), which have the key role in textbook development and distribution. Within this framework, this sub-component would: (a) complete the publishing program started under the ongoing Primary Education Development Project; (b) improve tdw aality of textbooks and teaching materials; and (c) further develop a viable system for providing books to students. 3.10 Publishing program. The textbook development program, started under the ongoing IDA Project, would be completed by financing the development, production and distribution of a total of about 1.4 million textbooks and 60,000 teacher guides. Textbooks for Grade 6 French, Grade 4 science and math, and Grades 4, 5 and 6 history would be authored and edited by DES, assisted by an experienced publishing firm, which would provide further training and support in the final stages of publishing. Textbooks for Grades 5 and 6 science and math, and for Grades 3, 4, 5 and 6 geography would be adapted from existing textbooks, provided adaptation rights can be obtained from the original publishers at an economic cost or be authored by nationals. All teacher guides would be published locally by DES and printed by local printers. In the case of science, CONFEMEN ("Conference des Ministres de l'Education Nationale") teacher guides (the only subject in which these materials are available) would be used as a resource in the development of manuscripts. The printing capacity of DES would be gradually developed to permit in-house printing of the teacher guides and supplementary teaching materials; this would be more efficient than private sector printing because of the low printing runs.  - 14 - 3.11 In preparing the textbooks and materials, efforts started under the Primary Education Development Project to promote female education and nutrition/health and environmental education would be continued. Focus would be on removing female stereotypes and developing positive images of women, especially in non-traditional roles that require mastery of mathematical and scientific concepts. Teaching of nutritiopn/ealth and environmental education would be integrated with the other subjects, and the project would finance the procurement and distribution of nutrition/health education materials being prepared by the Directorate of School Health and Hygiene (DESA) with the help of UNICEF. 3.12 Textboogualty would be addressed by upgrading the skills of staff responsible for the authorship and publishing of books, and by expanding the application of quality control procedures to cover the entire book development process. DES staff would receive additional training through local seminars and training abroad to improve their skills as editors and expand their activities to cover the full publishing cycle. The quality of authors would be improved through better selection procedures, training and greater editorial scrutiny of their work. Procedures for monitoring and evaluating the quality of books would be prepared and introduced, including the establishment of an internal committee that would read manuscripts as they are prepared to provide feedback to the authors and editorial staff. Also, first editions of textbooks would be tested in a limited sample of classrooms before finalization. To ensure that adequate quality-control standards are maintained, a Book Publications Commission, with a secretariat at the Directorate of Studies, Programs and Pedagogical Evaluation (DEPEP), would be established to supervise the quality-control process and recommend manuscripts for publication. 3.13 Textbook distribution. To ensure continuous availability of textbooks and materials in schools, the project would help introduce a textbook rental sch. me in schools, and the system for planning and financing book supplies and for book distribution would be strengthened and improved. MEBAM would continue to procure all books and teacher guides, and the capacity of the central warehouse would be increased to allow the ordering and storage of books for several years. The current system of selling textbooks to students through Faso Yaar, private book stores, and the Inspectorate would be continued; however, a major effort would be made under the project to introduce and generalize a textbook rental scheme. Under this system, students would be issued a set of books for each grade at the start of each year, for which they would pay a rental fee equivalent to about half of one-third the cost of the books (since books are designed to last about three years). The rental fees would be paid into the Textbook Fund, through the Inspectorate and be used for the re-supply of textbooks. Textbooks would be distributed to the main Inspectorate offices in the provinces by private transporters, from which the schools would collect their supplies. The Book Publications Commission would be responsible for supervising the operations of the rental scheme and for directing overall use of the Fund. 3.14 As the number of titles increases, the level of book rental fees that would permit 100% financing of book replacements from the Textbook Fund would be more than many families can afford (para 2.7). Rental fees thus need to be subsidized to make the books affordable for parents. Provision should also be made to finance the increased number of books required as student enrollment increases. Estimates of the cost of textbook requirements and projections of revenues from book rental would be made annually to assess the appropriate levels of rental fees and subsidies, as well as additional funds for increasing the book supply, which may need to be financed through the primary education budget. Replacement of teacher guides in public schools would be financed 100% from the MEBAM budget, while private and community schools would be expected to purchase their own. DAAF would be strengthened through training and logistical support to monitor and audit the rental scheme, and the Directorate of Studies and Planning (DEP) would include  - s - availability of textbooks and teacher guides in its annual statistical survey of schools as a further measure to monitor book supply. During negotiations the Government gave assurances that it will introduce a book rental scheme in primary schools, with regulations acceptable to IDA, starting in school year 1991/92. A condition of credit effectiveness would be submission of a plan, acceptable to IDA, for the establishment and operation of the textbook rental scheme, starting in school year 1991/92, including operation of the Textbook Fund, arrangements for the collection, safekeeping and use of fees collected, and Government's contribution to the Fund to cover book replacements. A detailed description of this component is found in Annex 3-1. The project would finance the procurement of textbooks and teacher guides to be published under the project, staff training and specialist services, and furniture, equipment and vehicles necessary for implementation of this sub- component (total base cost US$5.9 million). c. Increasing the Number of Primary School Classrooms 3.15 In order to reach the 40% enrollment ratio target in 1996/97, construction of about 4,000 new classrooms and maintenance of existing facilities would be required during the six-year period 1991/92-1996/97. To help rehabilitation/construction programs, the project would, in the seven project areas (Annex 3-2, para 7 (d) (ii)), assist local communities in their efforts to rehabilitate 300 and construct 1,200 classrooms. Of the remaining 2,800 classrooms, about 1,200 would be financed by local communities, leaving 1,600 to be financed by other sources. 3.16 Under the ongoing Primary Education Development Project, techniques and practices which are labor-intensive, and which also increase the technical skills of local artisans, have been developed to reduce construction costs by 50%. Key elements of these approaches are: first, a series of prototypes have been developed based on a survey of traditional skills and construction materials locally available; second, to reduce the administrative burden and delegate more responsibility to local commrunities, contractors/artisans are currently recruited directly by communities, while project supports provide the financing of labor services, a kit of construction materials, and technical guidance. Under the proposed project, it was agreed that the provis-on of fixed grants to communities covering part of labor costs would simplify and accelerate the implementation process. 3.17 Improvement-of community school construction and management skills. To improve the capability of local communities to organize community resources for the construction and maintenance of classrooms, the project would support: (a) the strengthening of Provincial Directorates (DPEBAMs) of the Ministry of Basic Education and Mass Literacy in their advisory and supervisory functions; (b) the selection of local contractors or artisans with sufficient experience and materials; (c) the diffusion of standardized low-cost building designs; and (d) the development of a school construction and maintenance capacity in the communities. Reinforced by regional construction teams and with assistance, where available, from government services (Secretariat d'Etat I l'Habitat), DPEBAMs would provide communities (CPGEEs and APEs) with information on ways of accessing support for school construction. They would help determine school needs and resources required to carry out school construction programs. Local builders recruited by communities would receive technical support and guidance from regional construction teams. The builders would have to participate in the construction of a model school, during which they should demonstrate their technical skills, in particular, for the construction of foundations, roofs and woodwork/ironwork. Following the probation period (2-3 weeks), the builders would receive an agreement equivalent to a pre-qualification to build schools for communities. The technology developed during the ongoing project would remain derived from traditional building practices to facilitate maintenance by the communities. The project would support the IDA Environmental Management Project being processed in parallel by providing, where feasible, the education infrastructure and services required  - 16 - by the beneficiary communities. Regional Construction Teams would assist the CPGEEs and APEs in preparing applications to be submitted to the DPEBAMs for the grant allowance; at the same time, building designs and materials to be used would be agreed. During the construction phase, supervision of construction would be carried out by the Regional Construction Teams. Improving the capacity of communities to decide on and organize the construction of their own schools would not only help increase communities' commitment to maintaining and managing their schools, but would also reduce capital costs, as well as represent a seedbed of skills and potential small entrepre- neurs for the informal sector. 3.18 Rehabilitation of 300 and construction of 1.200 classrooms. Criteria have been set up for the delivery of project support and allocation of grants to assist community school rehabilita- tion/construction programs. All rehabilitation programs supported by the project would be financed at 60% of the estimated cost on a grant basis, not to exceed CFAF 330,000 per classroom. All new construction programs supported by the project would be financed up to a total of 90% of total cost by the project except those in urban areas in which double-shift teaching will be introduced, and those to be established and operated as non-government schools by communities, which would be supported at 75%. On the basis of the designs chosen, a package of standard construction materials and a grant would be given to the communities for new construction. This grant would represent 60% of the estimated labor costs and be paid on condition that tranches of work have been delivered with the agreed quantities and quality. The purchase and transportation of construction materials to project areas would be carried out directly by the project through private entrepreneurs. The communities would be responsible for the provision of labor services, locally available building materials, and on- site security during the construction period. On this basis, unit construction costs are estimated at CFAF 7.5 million per bloc of three classrooms (including facilities for a director's office, storage, latrines, and teacher housing). The CPGEEs and APEs, representing the communities, would apply to MEBAM for the use of funds through the DPEBAMs, which would make recommendations for. final approval to coordinating committee, including representatives of the Ministry of Education. Once the regional programs are approved, the DPEBAMs, with assistance from the Regional Construction Teams, would assume primary responsibility for monitoring and supervising school rehabilitation/construction. Seven of these technical teams would be established in the project areas to assist the communities and supervise the delivery of project inputs. The main link between the communities and MEBAM would be through the DPEBAMs, which would prepare quarterly reports on the delivery of construction materials and the use of school construction funds in their areas. MEBAM would, however, maintaiii overall supervision through a locally hired construction coordinator. This sub-component is described in more detail in Annex 3-2. 3.19 The proiect would finance: (a) in urban areas and in the periphery of urban areas where the enrollment ratio is above 40%. 60% of the rehabilitation cost of 50 classrooms where double-shift teaching methods would be introduced, and 100% of the construction materials cost for the construction of about 100 classrooms in community schools; (b) in urban areas, in the periphery of urban areas and in rural areas where the enrollment ratio is below 40%, 60% of the rehabilitation cost of 250 classrooms, 100% of the construction materials cost, and 60% of the cost of labor services for the construction of about 1,100 classrooms; (c) 100% of school furniture, pedagogical materials and repair kits for classrooms constructed or rehabilitated; (d) 100% of equipment and consultant services for the Regional Construction Teams and the central coordinator posted at the Education Project Directorate; (e) 100% of short-term technical services and printing of construction and maintenance guides; and (f) 80% of operating costs for the Regional Construction Teams (total base cost US$17.9 million).  - 17 - 3.20 During negotiations, agreement was reached on: (i) the criteria for selecting the communities to be included in the school construction program, and (ii) on the location of the schools to be built during the first year of the project. The Government also gave assurnces that it will select the communities to be included in the school construction program in accordance with the agreed criteria. e. Improving Students' Health/Nutritional Status 3.21 In addition to efforts in the teacher training and textbook components to improve health/nutrition education, and the provision of wells and sanitary facilities in schools to be constructed under the project, micro-nutrients and deworming tablets would also be provided to students in all public and private primary schools at regular intervals to make up for nutritional deficiencies and reduce the parasite load of students. Vitamin A capsules and iodine would be distributed twice annually, while deworming tablets would be provided three times a year. An inter- ministerial committee, chaired by DEP, MEBAM and made up of DESA and DSF of the Ministry of Health and DGEP, DEP and IPB of MEBAM, would be established to plan the procurement, storage and distribution of the micro-nutrients and to advise on development of the pedagogical materials. The micro-nutrients and deworming tablets would be distributed to schools through the Regional Directorates of Primary Education; within the schools, distribution would be carried out by teachers in collaboration with district health authorities. The Ministry of Health would carry out quality control of the micro-nutrients, and DSF would monitor progress in the various regions. Schools would also be provided with first aid kits to help provide immediate help to students in need. Implementation of this component would be carefully monitored to evaluate the effectiveness of the implementation arrangements and to measure its impact on student attendance and performance. The evaluation would draw on the experience of the Ministry of Health in carrying out the UNICEF- supported pilot project. To implement this component, the project would finance equipment, pedagogical materials, and the procurement of micro-nutrients and deworming tables for students (total base cost US$0.5 million). f. Promoting Female Participation in Education 3.22 In addition to promoting female education through teacher training programs (para 3.5) and teaching materials (para 3.10-3.11), szudies on constraints to female participation in education would be undertaken to document and analyze the incidence and reasons for gerder bias, and to make specific recommendations for addressing these issues. The studies would draw on the expertise of an inter-disciplinary team and would be conducted in a number of communities representative of the various educational, social and cultural features in the country. These studies would provide some of the elements for planning and improving the targeting of interventions to reduce gender bias in the education system, and, inte ", would propose ways for increasing the proportion of women in the teaching cadre and for improving female achievement, especially in science, math and technical subjects. During negotiations the Government gave assurances that these studies will be completed by April 30, 1992, discussed with IDA the following September, and the agreed recommendations implemented by school year 1992/93. To implement this sub-component, the project would finance equipment, specialist services to help design the study, and operating costs for conducting the studies (total base cost US$0.2 million).  - 18- 2. Improving the Quality of General Secondary Education 3.23 This sub-component would: (a) upgrade the skills of teachers; (b) strengthen the secondary school inspectorate; and (c) ensure the regular supply of low-cost textbooks and teaching materials. 3.24 Upgrading teacher skills and school inspection. To help upgrade teacher skills the project would provide equipment and supplies for the pre-service training course at INSE and organize in-service training for teachers. INSE currently shares facilities and staff with other departments of the university, and until a study of the use of university facilities is completed and a plan for its future development prepared, it would be difficult to decide on any major investment for this institution. Support for the pre-service training course would therefore be limited to provision of audio-visual equipment and materials for teacher training in order to enhance INSE's capacity to use micro-teaching methods, and expand its small library of audiovisual materials to cover the entire range of secondary school subjects. INSE staff would also be trained in preparing audio-visual materials for use in training. In-service training of teachers would be conducted in one-week seminars, for about 2,000 teachers, by inspectors building on their experience in conducting similar courses. The seminars would focus on appropriate teaching methodologies and content of the eight basic subiccts taught at the secondary level; the integration of nutrition, health and population education in these subjects; and student assessment. Three seminars would be conducted biannually between 1992 and 1996. 3.25 To improve the effectiveness of the Secondary School Inspectorate, the project would support the training of inspectors and provide logistical support to make them more effective in their training and supervision functions. About 50% of the Inspectorate staff (15) are currently being trained abroad, and the project would provide fellowships for the remaining 14 inspectors to upgrade their skills as trainers to help run the in-service training courses, and provide effective routine support to teachers. In the training of inspectors, particular attention would be paid to math, science and languages, the improvement of female nutrition/population education, and the supervision of private schools, including Madarassas. Once all 29 inspectors have completed their training and become filly operational, the high ratio of teachers to inspectors (117:1 in 1989/90) will fall to about 56:1, making it easier for them to be effective. To further improve Inspectorate operations, the project would provide logistical support to increase the frequency of school visits and facilitate teacher training. The project would finance fellowships, specialist services, teaching materials, and operating costs of the in-service training courses (total base cost US$1.3 million). 3.26 Increasing supply of low-cost textbooks and teaching materials. Adequate supplies of low-cost textbooks and teaching materials would be ensured by supporting school textbook loan schemes for first-cycle secondary schools, provision of periodicals and books for first- and second- cycle secondary school teachers, and provision of science kits for all secondary schools. The project would build and expand on the current practice in some secondary schools, of libraries through which books are loaned to students for a fee of about CFAF 1,000 to 2,000 annually; the fees collected are used by the schools to operate a revolving fund for textbook repair and replacement. This scheme has proved to be successful and has helped reduce the cost of books to students in participating schools. The project would extend the benefits of this scheme to other schools present!y unable to participate due to a lack of start-up funds by financing the purchase of the first supply of books, and 30% of the cost of one replacement of these books to compensate for enrollment increases and possible shortfalls In the replacement fund while the system is being established. Schools wishing to participate in the scheme v,ould provide facilities for the library and establish the loan scheme and revolving fund. One book per three students would be ordered for French, math, natural science,  - 19 - physics and chemistry, and one book per six students for history and geography. MESSRS would establish regulations for the operation of the textbook loan scheme and the revolving fund, including levels of fees to be charged for borrowing and penalties for damage. It is expected that a library registrauion fee of about CFAF 1,800 annually per student for borrowing textbooks in all subjects would be sufficient to meet the costs of repair and replacement. Each school ould be responsible for operating its own loan scheme and for managing the revolving fund, but MESSRS would establish guidelines to be followed by schools in this respect. To further reduce the cost of books, the book requirements of the various schools would be consolidated by DAAF and ordered through the university bookshop, and funds from the schools in the scheme would be transferred to DAAF to pay for orders when required. Ordering of books through the university bookshop would permit bulk discounts that can be passed on to students, since the bookshop is part of MESSRS. Currently, because schools procure textbooks individually and purchase relatively small quantities at a time, they are unable to order directly from publishers and obtain bulk discounts. DAAF would be responsible for distribution of the textbooks to the schools and for helping to familiarize teachers and school directors with how the scheme operates. Teacher books would be issued free to staff in public schools, and private schools would be offered the books at cost to encourage them to do likewise. DAAF would be responsible for setting up and implementing the procedures for monitoring the textbook loan scheme and revolving fund. To improve science teaching, the project would provide science kits for use by teachers in public secondary schools, and offer the kits to private secondary schools at cost. During negotiations the Government gave assurances that: (a) by April 30, 1992, it will submit a detailed plan, acceptable to IDA, for the establishment and operation of a textbook loan scheme for secondary schools, including a revolving fund for textbook re-supply in each school in the program; and (b) starting in school year 1992/93, it will begin implement:ng the plan. The prQject would finance textbooks and teaching materials, fellowships, specialist services to help with the selection and procurement of textbooks, and equipment (total base cost US$4.3 million). 3. Strengthening Key Sectoral Institutions 3.27 This component comprises two sub-components: (a) further developing the planning and management capacity of MEBAM; and (b) developing the pmanning and management capacity of MESSRS. 3.28 Further developing thb planning and managemeni .snacity of MEBAM. This sub- component would build on the efftrts begun under the ongoi-g education project to upgrade MEBAM's planning capacity. Under this project, DEP staff l- ve been trained in educational statistics, school mapping and educational planning, enhancing th. r \iapacity to collect and analyze educational statistics and contribute to policy analysis and desigT.. The Fourth Education Project would further increase DEP's capacity wo analyze and publish education data and to develop and implement policy measures, especially in the areas of resource use c,d educational quality, through staff training, equipment and logistical support. The staff training would focus on economics of education and educational planning, with emphasis on policy development, and continue training in educational statistics and school mapping. In addition, the project would continue to support implementation of the results of the proposed review of the structure of MEBAM started under the Primary Education Development Project. in particular, the focus would be on improving the budgetary and administrative procedures of the Min'stry and on improving its system for collecting, analyzing and disseminating among the various departments information on the budget, personnel and students. In this light, the project would finance fellowships in educational policy, specialist services, educational policy, planning and statistics, specialist services, equipment, and logistical support for data collection and policy analysis (total base cost US$0.8 million).  - 20 - 3.29 The Education Project Directorate (EPD) in MEBAM is responsible for overall management and c-)rdination under ongoing project. The unit has performed well to date and, in the context of the Fourth Education Project, its capacities will be strengthened. To that effect, the EQirect would finance: (a) upgrading of existing facilities; (b) purchase of equipment and vehicles; (c) organization of a project launch seminar; (d) training for project directorate staff in accounting and management; (e) conferences and seminars for project staff; (f) specialist services for project account audits, as well as others required for project management, evaluation and preparation of future projects; (g) salaries of the administrator, construction and procurement specialists, accountant, and other contractual support staff; and (h) operating costs (including utilities, consumables, and travel allowances for project staff) (total base cost US$1.8 million). (Further details concerning project management are given in para. 4.2.) 3.30 Developing the planning and management capacity of MESSRS. Assistance for the development of this Ministry's planning and management capacity would be directed at strengthening DEP, the Directorate of Guidance and Fellowships (DOB), and the university. The project would improve the capacity of DEP to collect, analyze and publish educational statistics and to develop and implement policy measures, especially those related to resource mobilization and use, and to the internal and external efficiency of post-primary education. At the university level the project would build on efforts, recently initiated by the Rectorate to establish a management system for improving the utilization of university facilities and staff. An evaluation of current management practices would be undertaken and a new computerized management syste a introduced, along with a monitoring capacity to provide information on which to base decisions for further improving the management system. A study on the development of vocational education and training would be carried out under the project by DEP in collaboration with other ministries and agencies concerned. It would review programs and policies in vocational education and training and propose an action plan, including required policy and program reforms and investments. During negotiations the Government would be asked to give assurances that it will complete the study on vocational education and training by June 30, 1993 and discuss the conclusions of the study with IDA and other interested donors by September 30, 1993. The proijc would finance fellowships, short-term specialist services to help improve the management system of the DOB and the university, and studies on strategies for developing post-primazy education and training (total base cost US$0.6 million). C. The Policy Measures 1. Improving the Allocation and Increasing Efficiency in the Use of Sector Resources 3.31 To improve allocation and efficiency in the use of sector resources, the Government would: (a) Increase budgetary expenditures on primary education for financing the recruitment of about 950 teachers annually, textbooks and teaching materials, and operating costs for the Primary School Inspectorate, needed for quality improvement and the planned increase in the enrollment ratio from 31% to 40% by 1996/97. The total number of teachers for each year would be based on an average teacher/pupil ratio of 1:60, and the textbooks and teaching materials to be financed by the Government would include supplies for school administration, teacher guides and reprints of student textbooks. It is estimated that an annual increase of 8.5% in nominal terms (assuming the level and structure of the teacher salary scale remains unchanged) of the primary education budget will be needed to meet the annual cost of teacher needs, as well as for other inputs to improve quality and expand the system. During negotiations the Government gave assurances that it will: (i) increase the teaching cadre by  - 21 - recruiting about 950 teachers annually during nhe project period; (ii) allocate a minimum of 6% of the primary education budget to finance teachlng materials and textbooks; (iii) allocate an agreed amount for financing the operating costs of inspectors; and (iv) increase the primary education budget by the required amount to finance the ii:ems in (i) to (iii), estimated at 8.5% annually in nominal terms. (b) Increase efficiency in the use of primary school teacaiers and classrooms by (i) introducing multigrade teaching in about 840 classrooms with an average teacher/pupil ratio of less than 1:40 over the project period; and (ii) phase in double-shift teaching in about 590 classrooms with one teacher for two cohorts of 55 pupils each, and pay an appropriate salary supplement to teachers participating in the program. A public information campaign would be launched during 1991/92 to inform parents about multigrade and double-shift teaching. During negotiations the Government gave assurances that it will: (i) introduce and generalize multigrade in a minimum of 840 classrooms over the project period at a rate of 280 classrooms biannually, starting in 1992/93; (ii) introduce double-shift teaching with one teacher for two cohorts of about 55 pupils each (and an appropriate salary supplement to teachers participating in the program) in a minimum of 590 classrooms over the same period, starting with 60 classrooms in 1992/93 and gradually increasing to 590 in 1996/97; ared (iii) based on discussions of the findings of an evaluation during the mid-term review scheduled for September 1994, take appropriate measures toward the generalization of the system. (c) Reduce secondary and higher education student subsidies by 5% (nominai merms) in 1991/92, and by 10% annually in nominal terms between 1992/93 and 1996/97, resulting in reduced student subsidy levels in secondary education from CFAF 1,831 million to CFAF 1,026 million, and in higher education from CFAF 4,406 million to 2,224 imillion over this period by: (i) limiting new fellowships in higher education to 750 annually (down from 1,000 in 1989/90), rather than awarding fellowships to all newly eligible secondary school certificate holders (those 21 years of age or younger), who numbered about 2,000 in 1989; (ii) revising the criteria for fellowship awards to link them more closely to priority areas such as science and math, restricting the renewal of fellowships, and limiting the generous conditions under which fellowships are awarded, including subsidized canteens and travel during vacations; and (iii) improving the management of student subsidies that currently leads to waste. During negotiations the Government gave assurances that it will reduce expenditures on secondary and higher education student subsidies by 5% in 1991/92, and 10% annually between 1992/93 and 1996/97 by implementing specific actions agreed with IDA (paras 2.20-2.21). In its recently completed PFP, the Government agreed to increase budgetary allocations to primary education and reduce current transfers for student subsidies in secondary and higher education in line with the targets set in (a) and (c) above. Implementation of budgetary restructuring measures will be a key component of the SAL, for which negotiations are scheduled mid-May 1991. 2. Promoting Private Initiatives in the Provision of Education 3.32 To promote private sector and community initiatives in the provision of education, especially in light of government budgetary constraints, the Government taking measures to encourage the establishment and operation of private and comm.unity schools, including Madarassas, and to create an environment more conducive to the rapid expansion of other private initiatives in education. A central element of this new policy will be the liberalization of fees charged by these schools. The Government is also studying the broader issues concerning the establishment and operation of these schools, as well as ensuring their access to the various support services necessary to maintain a  - 22 - minimum level of quality and standards, e.g., teacher training, textbooks and pedagogical materials, and inspectorate services. With respect to the liberalization of private school fees, the Government has confirmed its intention to introduce this measure effective as of school year 1992/93, following sufficient time for implementation of a consensus-building campaign and other preparatory measures to be carried out during school year 1991/92. In the interim, the Government will proceed with a 10% increase in fee ceilings, effective school year 1991/92, which would bring the fees to a level equivalent to about 90% of the per pupil cost in public schools. During negotiations the Government gave assurances that it will: (i) by December 31, 1991, announce its decision with respect to the lifting of ceilings on fees charged by schools run by individuals, private groups, and communities to take effect as of school year 1992/93; and (ii) establish guidelines for the operation of these schools, and provide them access to teacher training, textbooks, teacher guides, and Inspectorate services to help maintain minimum levels of quality and standards, starting in school year 1991/92. As conditions of effectiveness the Government would: (i) submit to IDA, for review and comment, the findings of two studies concerning, respectively, the establishment and operation of schools run by individuals, private groups and communities, and the proposed liberalization of fees charged by these schools; and (ii) raise the ceiling applicable to such fees by not less than 10% as of school year 1991/92. D. Project Cost and Financing Plan 3.33 Co. The total cost project is estimated at US$46.4 million equivalent, net of taxes and duties, witn a foreign exchange of US$32.0 million, or 70% of the total project cost. The base cost would be US$37.9 million (81 %). Physical and price contingencies are estimated at US$8.9 million (24% of base cost); the physical contingencies include 10% for physical investments and 5% for training, consultant services and operating costs. Price contingencies assume a domestic inflation rate of 4% throughout the life of the project and an international inflation rate of 9% in FY92, 1.1 % in FY93, 0.4% in FY94, 1.6% in FY95, 3.8% in FY96, 4.0% in FY97, and 4.7% in FY98. 3.34 IDA would allocate US$24.0 million toward the financing of this project, or 52% of total cost. Contributions by local communities for construction costs (US$1.8 million) and financing by the Government (US$0.8 million) add up to US$2.6 million equivalent, or 6% of total project cost. Financing of the remaining US$19.8 million, or 43% of total project cost, is expected from the Kingdom of Norway (US$3.8 million, or 8% of total cost), from EC (US$7.3 million, or 16% of total cost), and CIDA (US$8.7 million, or 19% of total cost). Detailed project costs by component cost category and financing source are given in Annex 3-3. Cost estimates by category of disbursement and by component are shown in the tables below.  - 23 - PROJECT COST SUMMARY BY CATEGORY OF DISBURSEMENT (in millions) CFAP USS % % Total Foregn Base Local Foreign Total Loa Foreign Tota Exchang Costs 1. INVESTMENT COSTS A. Civil Works 64.6 104.8 169.4 0.2 0.4 0.6 61.9 1.6 B. Classrooms 1. Grant 60% 864.8 0.0 864.8 3.0 0.0 3.0 0.0 8.1 2. Contribution 100% 60.9 0.0 60.9 0.2 0.0 0.2 0.0 0.6 3. Construction Materials 77.1 750.5 827.7 0.3 2.6 2.9 90.7 7.8 4. Construction Materials (EC) 163.0 1,585.5 1,748.5 0.6 5.5 6.2 90.7 16.4 Sub-Total 1,163.8 2,336.0 3,501.8 4.2 8.2 12.3 66.7 32.8 C. Goods 1. Equipment 0.0 759.1 759.1 0.0 2.7 2.7 100.0 7.1 2. Furniture 158.1 683.5 841.6 0.6 2.4 3.0 81.2 7.9 3. Vehicles/Cycles 0.0 188.3 188.3 0.0 0.7 0.7 100.0 1.8 Sub-Total 158.1 1,631.0 1,789.0 0.6 5.7 6.3 91.2 16.8 D. Pedagogic Materials 0.0 127.9 127.9 0.0 0.5 0.5 100.0 1.2 E. School Books & Manuals 0.0 1,944.8 1,944.8 0.0 6.8 6.8 100.0 18.2 P. Consultant Services 1. National 252.0 0.0 252.0 0.9 0.0 0.9 0.0 2.4 2. International 0.0 636.4 636.4 0.0 2.2 2.2 100.0 6.0 Sub-Total 252.0 636.4 888.4 0.9 2.2 3.1 71.6 8.3 G. Training 1. Local Training 1,061.6 0.0 1,061.6 3.7 0.0 3.7 0.0 9.9 2. Overseas Training 0.0 307.7 307.7 0.0 1.1 1.1 100.0 2.9 Sub-Total 1,061.6 307.7 1,369.3 3.7 1.1 4.8 22.5 12.8 Total INVESTMENT COSTS 2,702.1 7,088.5 9,790.6 9.6 24.9 34.5 72.4 91.8 11. INCREMENTAL OPERATING COSTS A. Operation Expenses 1. Consumables 10.5 45.6 56.2 0.0 0.2 0.2 81.2 0.5 2. O.& M. 47.9 206.4 254.3 0.2 0.7 0.9 81.2 2.4 3. Salaries/Travel Allowance 568.6 0.0 568.6 2.0 0.0 2.0 0.0 5.3 Sub-Total 627.0 252.0 879.0 2.2 0.9 3.1 28.7 8.2 Tota BASELINE COSTS 3,329.1 7,340.5 10,669.7 11.9 25.6 37.S 68.5 100.0 Physical Contingencies 235.9 674.2 910.1 0.8 2.4 3.2 74.1 8.5 Price Contingencies 506.1 1,077.7 1,583.8 1.7 3.9 5.6 70.2 14.8 Total PROJECTS COSTS 4,071.1 9,092.5 13,163.6 14.4 32.0 46.4 69.1 123.4 (Figures may not add up to total due to rounding.)  - 24 - PROJECT COST SUMMARY BY COMPONENT (in millions) CPAF USS % % Total Foreign Base L2 a FPoreien Total Local Ergign T Exchan Costs A. ACCESS AND OUALITY OP BASIC EDUCATION 1. TEACHER TRAINING 958.0 57.0 1,015.0 3.4 0.2 3.6 5.6 9.5 2. SUPPORT TO INSPECTORATES 8.8 104.5 113.3 0.0 0.4 0.4 92.3 1.1 3. EVALUATION SYSTEM 1.0 50.0 51.0 0.0 0.2 0.2 98.0 0.5 4. TEXTBOOKS 299.6 1,351.9 1,651.6 1.1 4.8 5.8 81.9 15.5 5. CONSTRUCTION OF CLASSROOMS 1,393.7 3,295.1 4,688.8 5.0 11.5 16.5 70.3 43.9 6. REHAB/MAINT. OF CLASSROOMS 202.5 221.9 424.4 0.7 0.8 1.5 52.3 4.0 7. IMPROV. HEALTH/NUTRITION 0.0 146.7 146.7 0.0 0.5 0.5 100.0 1.4 8. PROMOTING FEMALE EDUCATION 7.0 61.4 68.4 0.0 0.2 0.2 89.7 0.6 Sub-Total 2,870.7 5,288.S 8,159.1 10.2 18.5 28.7 64.8 76.5 B. OUALITY OF SECONDARY EDUCATION 1. TEACHER TRAINING/INSPECT. 134.0 217.9 351.8 0.5 0.8 1.2 61.9 3.3 2. TEXTBOOKS 65.6 1,179.6 1,245.2 0.2 4.1 4.4 94.7 11.7 Sub-Total 199.6 1,397.4 1,597.0 0.7 4.9 5.6 87.5 15.0 C. INSTITUTIONAL STRENGTHENING 1. MEBAM PLANNING 43.6 177.6 221.2 0.2 0.6 0.8 80.3 2.1 2. MESSRS PLANNING 0.3 184.0 184.3 0.0 0.6 0.6 99.9 1.7 3. PROJECT DIRECTORATE 215.0 293.1 508.0 0.8 1.0 1.8 57.7 4.8 Sub-Total 258.9 654.6 913.5 0.9 2.3 3.2 71.7 8.6 Total BASELINE COSTS 3,329.1 7,340.5 10,669.7 11.9 2S.6 37.5 68.S 100.0 Physical Contingencies 235.9 674.2 910.1 0.8 2.4 3.2 74.1 8.5 Price Contingencies 506.1 1,077.7 1,583.8 1.7 3.9 5.6 70.2 14.8 Total PROJECT COSTS 4,071.1 9,092.5 13,163.6 14.4 32.0 46.4 69.1 123.4 US$ Local Forcien Total Financine Plan IDA 5.7 18.3 24.0 Kingdom of Norway 0.0 3.8 3.8 EC 2.1 5.2 7.3 CIDA 4.0 4.7 8.7 Local Participation 1.8 0.0 1.8 Government 08 0.0 0 Totl 14 L (Figures may not add up to total due to rounding.)  - 25 - Mecurrent Cost IMDlicatlons 3.35 Budgetaa imp. The main sources of incremental recurrent costs generated by the project would be salaries, teaching materials, and other inputs required to meet the project's objectives. Achieving the project target of increasing the enrollment ratio to 40% by 1996/97 would require an annual increase of 8.5% (in nominal terms) of the primary education budget during the project period, as described in para 3.32 (a). Given that without the project an annual increase of 3.5% would have been required to maintain the current enrollment rate of 31%, the incremental recurrent costs of the project would be equivalent to a 5% annual growth rate in the primary education budget. Assuming that the Government's budget increases by 3% annually, primary education's share of Government's total recurrent budget would increase from 10.7% in 1990, to 11 % in 1996 without the project, and with the project to 14.6%. The Government has ensured that it will make available the resources necessary to respect these budgetary targets, and similar assurances have been incorporated into and will be monitored under the PFP and the proposed SAL. 3.36 Cost savings. The project would generate savings both during and after the project period, some of which are difficult to quantify at this time, e.g., gains from internal efficiency. Gradual introduction of multigrade teaching in 840 classrooms would increase enrollment by about 20,000 students over the project period, and by about 6,700 students annually (about 20% of current enrollment) when all the 840 classrooms are operating multigrade. The cost per pupil for teachers in these classrooms would also be reduced by 21 %, from CFAF 31,000 to 25,000, with an increase in the average class size of the 840 classrooms from 32 to 40 with multigrade teaching. Cost savings over the period would total about CFAF 630 million (US$2.5 million) and about CFAF 200 million (US$800,000) annually in these 840 classrooms. This would also allow for the provision of a full cycle of primary education in remote areas and an annual intake of students rather than every other year, which results in some cohorts missing school completely. Introducing double-shift in classrooms with a current average student/teacher ratio of 81:1 during the project period would increase student enrollment by 42,000 students and yield savings on teacher costs of about CFAF 144 million (US$570 million). When double-shift teaching has been generalized, it is estimated that the increase in enrollment would be about 40,000 students annually, and teacher costs reduced by 7% annually, resulting in savings of about CFAF 113 million (US$446,000). The combined increase in enrollment from multigrade and double-shift over the project period would be about 62,000, and when the 840 and 1,150 classrooms are operating under the multigrade and double-shift systems, respectively, the increase would be 24,000 students annually. In 1996/97 this would represent about 3 % of the projected enrollment in that year and increase the enrollment ratio by about 1%. Quality improvements would increase the internal efficiency of the education system and thereby reduce the unit costs per graduate. The proposals to reduce expenditures on secondary and higher education student subsidies would accrue savings of about CFAF 3,000 million during the project period. IV. PROJECT IMPLEMENTATION A. Status of Project Preparation and Readiness 4.1 The project was pre-appraised in February 1989 and appraised in June/July 1990. The policy measures to be included in the project were discussed in Washington in October 1989 with the Ministries of Education, Plan, and Finance, and during project appraisal. Plans for implementa-  -26- tion of multigrade and double-shift have been finalized, as have the measures for reducing student subsidies and for promoting private education, which were finalized during negotiations. Implementation plans for the main investment components have also been prepared, including the targets for the construction of schools for the first year. The textbook and school construction components will expand on programs being implemented under the ongoing Primary Education Development Project (para 2.30). The organizational structures for carrying out the plans are in place, since the components would build on experiences and pilot tests conducted under that ongoing project, or projects financed by other donor agencies. B. Project Management 4.2 Each project component would be implemented by the relevant directorate of MEBAM or MESSRS, the respective components having been designed as integral parts of the work programs of the concerned directorates. However, overall project coordination and management would be the responsibility of the Education project Directorate (EPD) in MEBAM; EPD would also directly supervise implementation of the largest component -- primary school construction and maintenance program (para 3.15-3.16). More specifically, EPD would be responsible for: (a) coordinating and monitoring project activities; (b) supervising the school construction program; (c) administering project resources; (d) maintaining project accounts, preparing withdrawal applications and providing necessary certifications for disbursement, including SOEs; (e) ensuring observance of IDA's procurement procedures; (f) reporting on progress of project implementation; (g) ensuring adequate auditing of the project accounts; and (h) liaising with other Ministries, IDA and other donors. EPD staff would include: a project director, an administrator in charge of project monitoring, a procurement specialist, a construction specialist (acting as central coordinator for the construction program), and an accountbnt. During negotiations the Government gave assurances that the staffing positions noted above will be filled at all times by persons with experience and qualifications acceptable to IDA. 4.3 Coordination among the various Directorates of MEBAM would be conducted through the existing Ministerial Advisory Committee, chaired by the Minister. This Committee, which meets weekly to discuss development and implementation of the Ministry's programs, has been involved in discussions of the project objectives and design. Annual reviews would be undertaken by the Government, IDA and cofinanciers to assess progress in project implementation, including the impact of the policy measures (para 3.31), and on that basis agree on the next annual work program. A joint mid-term review evaluation would also be carried out in 1994/95 to review the progress of project implementation. During negotiations the Government gave assurances that it will undertake with IDA: (a) annual reviews of the progress of project implementation, starting not later than September 30, 1992, and by September 30 every year thereafter; and (b) a mid-term project evaluation not later than September 30, 1994. A detailed plan for supervision of project implementation is presented in Anne4-.  - 27 - C. Procurement. Disbursement and Accounting 4.4 Ihe procurement arrangements are summarized below. Amounts and Methods of Proeurement (USS million including Contingencies) No. Categgory of exoenditur [CB L Other A Totl Cost 1. Civil Works Contracts - 0.40 - 0.30 /a 0.70 - (0.40) - (-) (0.40) 2. Constmction/rehabilitation of classrooms a) Construction materials 5.50 - 5.80 /b 11.30 (5.50) - (-) (5.50) b) Grants - - - 4.20 4.20 - - - (2.30) (2.30) 3. Furniture - 3.50 0.20 - 3.70 - (3.50) (0.20) - (3.70) 4. Equipment, vehicles 1.60 - - 2.50 /c 4.10 (1.60) - - (-) (1.60) 5. Pedagogical Materials & Equipment a. Textbooks 4.90 - - 3.70 /d 3.60 (Secondary Schools only) (4.90) - - (-) (4.90) b. Pedagogical Materials 0.50 - - 0.10 /e 0.60 (0.50) - - (-) (0.50) 6. Consultants Services - - 2.70 1.00 If 3.70 * - (2.70) (-) (2.70) 7. Training a. Local Training - - - 4.30 /g 4.30 - - - (0.80) (0.80) b. Fellowships - - 0.50 0.80 /h 1.30 - - (0.50) (-) (0.50) 8. Operating Costs - - 0.75 3.15/i 3.90 - - (0.60) (0.50) (1. 10) Total Costs 12.50 3.90 4.15 25.80 46.40 Total Financed by the IDA credit (12.50) (3.90) (4.00) (3.60) (24.00) The following capital letters show the project components: Part A: Increasing Access to and quality of basic education Part B: Improving the quality of secondary education Part C: Strengthening Institutional capacity Note: Figures in parentheses are the respective amounts financed by the IDA credit. Footnotes with small letters indicate amounts financed by other donors and procured under their procedures: (a) US$0.30 (b) US$5.80 (c) US$2.50 (d) US$3.70 (e) US$0.10 (f) US$1.00 (g) USS4.30 (h) US$0.80 (i) US$3.15 Figures may not add up to total due to rounding.  - 28 - 4.5 InternatIonal ComDeitiveBiddingtlCB). Contracts for constructionmaterials (estimated at US$3.6 million) and goods, including vehicles, computers, office supplies, textbooks and pedagogical material (estimated at US$7.0 million), totalling US$10.6 million equivalent and representing 73% of the total value of contracts for works and goods financed by IA, would be grouped into packages of at least US$200,000 equivalent to improve bid competition. Items suitable for international com2etitive bidding (ICB) would be procured in accordance with the Bank's Guidelines for Procurement Under IBRD Loans and IDA Credits (May 1985). To the extent possible, contracts for items such as construction materials that require frequent provision of goods of similar nature would include provisions for such delivery. Contracts would be signed for the entire package with provision for annual delivery over a number of years - to be determined in advance. Where ICB procedures are used, a preferential margin of 15% for goods manufactured locally, or the existing customs duty, whichever is less, over the c.i.f. prices of competing goods, would be given to domestic manufacturers in accordance with IDA's guidelines. 4.6 Local Competitive Bidding (LCB). For the remaining 27% of the total value of goods and works contracts financed by IDA, totalling US$3.8 million equivalent, procurement other than ICB would be used. The exception to ICB procurement would be for: (a) contracts for furniture (mostly school furniture) totalling US$3.4 million which would be available locally at prices below international market (procurement would be done by bulking furniture, to the extent possible, to achieve economy of scale); and (b) contracts for civil works, which are small in size totalling US$0.4 million. These items, which are not expected to attract foreign bidders because of their small size and the diversity of site delivery, would be awarded on the basis of competitive bidding advertised locaDl (LCK in accordance with procedures acceptable to IDA, provided that: (a) any procedure under which bids above or below a predetermined assessment of bid values are automatically disqualified is not permitted; (b) bidders are allowed sufficient time to submit bids (45 days minimum); (c) evaluation criteria are clearly specified (price, capability to perform, adequacy of equipment and personnel, and financial capacity); (d) all bids are opened in public and bidders' representatives are allowed to be present; (e) no preference margin is granted to domestic contractors, suppliers and manufacturers; (f) eligible foreign firms are not precluded from participation and are not required to be incorporated in Burkina Faso in order to participate in the bidding; (g) the bidding documents provide for security in an amount sufficient to protect the Borrower in case of breach of contract (this security would be provided by performance bond or bank guarantee, at the bidder's option, and without distinction or exception for foreign or local firms); and (h) prior to issuing the first call for bids, a copy of a draft standard bidding document is submitted to IDA and found acceptable. 4.7 Other methods of procurement. Items, under the category of furiture and operating costs financed by IDA (consumables, office supplies) not exceeding US$20.0: and aggregating to a maximum of US$0.8 million equivalent, could be purchased through international or local shopping on the basis of price quotations obtained from at least three reliable suppliers to ensure competitive prices. 4.8 "Grants" funded by the project and financed by IDA (totalling US$2.2 million equivalent and representing 60% of labor services for new construction and 60% of total rehabilitation costs) would be paid to communities on condition that tranches of works have been delivered with quantity and quality agreed upon. As these grants would be equivalent to fixed subsidies, the contract awards would not be subject to procurement review.  - 29 - 4.9 Review. For contracts financed by IDA (for civil works and goods) estimated at more than US$200,000 equivalent each, the bidding documents, advertisements and proposed contract awards would be reviewed by IDA prior to further bidding and to decision on the final awards. It is estimated that prior review would cover about 73% of the total value of the amnount contracted for goods and works financed by IDA. The remaining 27% of the value contracted for goods and works would be subject to either: (a) post-review for contracts estimated at between US$20,000 and US$200,000 equivalent; or (b) selective post-award review for contracts estimated at less than US$20,000. For the latter, expenditures would be made out of certified Statements of Expenditure (SOEs), and documentation would be retained at the Project Directorate for random review by IDA staff and for annual audits. 4.10 Training and cogsultants financed by IDA, totalling US$3.2 million, would be contracted in accordance with tha Guidelines for the Use of Consultants by World Bank Borrowers and by the World Bank as Executing Agency (August 1981). A summary of local and foreign training to be provided under the project is shown in Annex 4-2A. Annex 4-2B provides a summary of local and foreign specialist services. 4.11 Procurement of contracts for project components financed on a parallel basis by other donors would follow procedures in accordance with their respective guidelines, except for contracts financed under the Norwegian grant, which would be administered by IDA and for which the above- described Bank's procurement guidelines would apply. During negotiations the Government gave assurances that It will apply procedures in accordance with the Bank's Guidelines for Procurement Under IBRD Loans and IDA Credits and for the Use of Consultants. 4.12 Disbursements. The project is expected to be completed over a six-year period by December 31, 1997. The IDA credit would be disbursed according to the country disbursement profile for all sectors over a period of seven years on the basis of the categories shown below. Given the availability of the Special Account, the minimum application for direct payments would normally be for the equivalent of US$30,000. The amounts to be financed under each category are shown below. The estimated quarterly disbursement schedule for the IDA credit is shown in Annex S3. Allocation and Disbursement of the IDA Credit (US$ million Proposed IDA % of Expenditurc Categoo of ExDcnditure Allocation Disbursed by IDA 1. Civil Works contracts 0.4 100% 2. Construction of classrooms (a) Construction materials 4.7 100% (b) Grants for labor costs 2.0 100% 3. Grants for rehabiliation 0.6 100% 4. Furniture, vehicles, equipment, office suppie 4.7 100% S. Pedagogical Materials and Textbooks 4.9 100% 6. Specialist Services 2.4 100% 7. Training 1.2 100% 8. Incremental Operating Costs 0.9 80% 9. Unallocated Tota 24.0  - 30 - 4.13 Special Accu. To facilitate disbursement, USSO.6 million equivalent, denominated in CFA francs, would be advanced from the IDA credit and deposited in a Sg&ial Accoun opened by the Government in a local commercial bank. The amount is estimated to cover about three months of expenditures. The Special Account would be replenished by submitting withdrawal applications (WAs) to IDA. All WAs would be fully documented except for expenses related to contracts valued at less than US$20,000 equivalent each, which would be reimbursed against Certified Staements of Exp2nditures (SOEs). Documentation for SOE claims would be retained at the Project Directorate for selective post-review by IDA staff during supervision missions and for regular annual audits. Reimbursement applications would also include a statement of account movements since the last application, with the balance certified by the bank holding the account, and a reconciliation showing that the balance represented is the original amount less payments awaiting reimbursement of small working advances. The Government would submit replenishment requests to the Special Account on a monthly basis, or whenever the accounts are diminished by one-third, whichever comes first. 4.14 Accounting and auditing. The Project Directorate would properly maintain, to the satisfaction of IDA, separate accounts and records to be used exclusively for the project. To that end, the existing accounting system would be adapted to meet the specific requirements of the project. Assistance from an independent auditor is being provided with financing from the ongoing Primary Education Development Project. All receipts and payments for and in connection with the carrying out of the project would aggregate expenditures incurred for each project component and would be registered in accordance with accounting principles and procedures consistently applied. The Project Directorate would furnish to IDA as soon as available, but in any case not later than June 30 of each year, beginning in 1992 (six months after the end of the Government's fiscal year) an annual audit report, including: (a) annual financial statements on project expenditures summarizing such accounts; (b) separate opinion reports from a competent anu independent auditor, acceptable to IDA, as to the accuracy and authenticity of such financial statements; and (c) certificates, satisfactory to IDA and from the same auditor, certifying that the value and quantity of services are adequately reflected in such financial statements. In addition, the Special Account and SOEs would be audited semiannually and audit reports submitted three months after the end of each audit period. The same auditor would also issue a management letter and furnish to IDA annual perfornance audit reports and such other information concerning such accounts and records, audits and certificates as IDA may from time to time reasonably request. During negotiations agreement was reached on the terms of reference for the auditor to audit all project accounts annually, and the Government gave Mrance4 that it will submit to IDA an annual audit report, of reasonable scope and detail, within six months after the end of the Government's fiscal year, and in the case of the Special Account and SOEs, submit semiannual audit reports within three months after the end of each audit period. A condition of credit effectien would be that the adapted accounting system is in place and an independent auditor, acceptable to IDA, has been retained for the auditing of the project accounts. 4.15 Reporting. The Project Directorate would: (a) submit to IDA semiannual geportn lplect implementation for the period July to December by March 31 and September 30 for the period January to June of each year, beginning in 1992; (b) show in the September report in preparation for th,e annual review (i) performance in project achievements, (ii) the one-year program for the upcoming fiscal year, (iii) the status of policy reform indicators, (iv) a draft budget for the sector for the upcoming year, (v) the actual budget law when issued, and (vi) the budget as executed; and (c) submit a completion reo within six months of the credit closing date. During negotiations the Government gave assurancs that it will prepare and submit semiannually to IDA a detailed report on the implementation of all aspects of the project, and will prepare and submit a project completion report within six months of the credit closing date.  - 31 - V. PROJECT BENEFITS AND RISKS A. Bgnfihts 5.1 The project would assist in further developing human resources in Burkina Faso by increasing the level of basic education in the country, thus improving the overall quality of the labor force. At the primary level, the project would increase the primary school enrollment ratio from 31% in 1989/90 to 40% in 1996/97 by creating about 200,000 additional school places. This would imply a rapid increase in student enrollment from 470,000 in 1989/90 to about 800,000 in 1996, and 1 million in 2000. Introduction of multigrade and double-shift teaching would increase student enrollment by about 62,000 over the project period and 24,000 annually thereafter, lower the per pupil costs of education, yielding total cost savings over the project period of about CFAF 774 million (US$1.2 million) annually, and increase access to education in sparsely populated and urban areas. Quality improvement in secondary education would help meet middle-level skill requirements by improving the employability and trainability of secondary school graduates. Reduction of student subsidies (including fellowships) in secondary and higher education would save about CFAF 3,000 million (US$11.5 million equivalent) over the project period, which could be applied toward improving the quality and quantity of education inputs; and the targeting of fellowships would help direct students to priority areas and reduce overcrowding in others. Incentives to promote private and community schools would help increase resources for the sector and improve utilization of these resources, thereby reducing constraints to the expansion of education. In addition, efforts to improve knowledge and awareness of issues related to health/nutrition, population and the environment, and to increase female participation in the education system would have broad positive impacts on the society at large. The project would also help strengthen the institutional framework for effective policy development and implementation in the education sector. B. Risks 5.2 One major risk concerns difficulties the Government may face in meeting the conditions to increase budgetary allocations for primary education and reduce student subsidies. This risk is mitigated by the Govermnent's consensus-building approach on policy changes through wide-ranging consultations; and initial steps towards that goal have proven successful. There is now widespread support for increasing allocations for primary education, which have been increased in the 1991 budget. The Government has also taken steps to limit the number of new fellowships awarded for higher education was limited to 1,000 in 1988/89 and 750 in 1989/90, instead of awarding fellowships to all "Bacheliers" 21 years of age or younger (numbering about 2,000 in 1989/90 and increasing). The Government's performance in meeting these budgetary conditions would be monitored during the annual reviews of project implementation, and release of the second and third tranches of the SAL would be subject to the Government's meeting these conditions. A second risk concerns the ability of communities to contribute the required 10% of school construction costs in cash or in kind. This risk would be addressed by duplicating the experience of the Primary Education Development Project, where communities were mobilized effectively to contribute materials and labor to school construction, and by limiting the contribution of communities to 40% of labor costs and 10% of total construction costs. This risk would be further mitigated through greater decentralization of the responsibility for the establishment and operation of schools to the Provincial Directorates, which are in closer touch with the communities and can more easily help them organize their contributions to school construction. Furthermore, Burkina Faso has a strong tradition of successful community participation in similar constructijn works.  - 32 - VI. AGREEMENTS TO BE REACHED AND RECOMMENDATION 6.1 During negotiations, the Government gave assurances that It will: (a) By March 31, 1992, submit to IDA for review the' draft rules governing the standardized student assessment in Grade 3 and the improved examination combining certification of completion of primary education and entry into secondary school; and based on agreements reached following the review, approve these regulations by June 30, 1992, and begin implementing them in school year 1992/93 (para 3.8); (b) Introduce a book rental scheme in primary schools, with regulations acceptable to IDA, starting in school year 1991/92; (para 3.14); (c) Select the communities to be included in the school construction program in accordance with the agreed criteria (para 3.20); (d) The studies on constraints to female participation in education will be completed by April 30, 1992, di&,ussed with IDA by September 30, 15 2, and the agreed recommendations implemented by school year 1992/93 (para 3.22); (e) By April 30, 1992, submit a detailed plan, acceptable to IDA, for the establishment and operation of a textbook loan scheme for secondary schools, including a revolving fund for textbook re-supply in each school in the program; and starting in school year 1992/93, begin implementing the plan; (para 3.26); (1) Continue to staff the Education Project Directorate with personnel with experience and qualifications acceptable to IDA (para 3.29); (g) Complete the study on vocational education and training by June 30, 1993 and discuss the conclusions of the study with IDA and other interested donors by September 30, 1993 (para 3.30); (*) (i) Increase the teaching cadre by recruiting about 950 teachers annually during the project period; (ii) allocate a minimum of 6% of the primary education budget to finance teaching materials, textbooks, and other non-salary expenditures; (iii) allocate an agreed amount for financing the operating costs o* inspectors; and (iv) increase the primary education budget by the amount required to finan t items in (i) to (iii), estimated at 8.5% annually in nominal terms (assuming the level and structure of teacher salaries do not change) (para 3.31 (a)); (i) (i) Introduce and generalize multigrade teaching in a minimum of 840 classrooms over the project period at a rate of 280 classrooms biannually, starting in 1992/93; (ii) introduce double-shift teaching with one teacher for two cohorts of about 55 pupils each (and an appropriate salary supplement to teachers participating in the program) in a minimum of 590 classrooms over the same period, starting with 60 classrooms in 1992/93 and gradually increasing to 590 in 1996/97 and, based on the findings of an evaluation to be carried out in the context of the mid-term review scheduled for September 1994, take appropriate steps to generalize double-shift teaching (para 3.31 (b));  - 33 - 0) Reduce expenditures on secondary and higher education student subsidies by 5% in 1991/92 and 10% annually between 1992/93 and 1996/97 by implementing specific actions agreed with IDA (para. 3.31 (c)); (k) (i) By December 31, 1991, announce its decision wkh respect to the lifting of ceilings on fees charged by schools run by individuals, private groups, and communities to take effect as of school year 1992/93; and (ii) establish guidelines for the operation of these schools, and provide them with easy access to teacher training, textbooks, teacher guides and Inspectorate services to help maintain minimum levels of quality and standards, starting in school year 1991/92 (para 3.32); OI) Undertake with IDA: (i) annual reviews of the progress of project implementation, starting not later than September 30, 1992, and by September 30 every year thereafter; and (ii) a mid- term project evaluation not later than September 30, 1994 (para 4.3); (m) Apply procedures and arrangements agreed upon during negotiations and in accordance with the Guidelines for Procurement Under IBRD Loans and IDA Credits and for the Use of Consultants (para 4. 11); (n) Submit to IDA an annual audit report, of reasonable scope and detail, within six months after the end of the Government's fiscal year, and in the case of the Special Account and SOEs, submit semiannual audit reports within three months after the end of each audit period (para 4.14); and (o) Prepare and submit semiannually to IDA a detailed report on the implementation of all aspects of the project, and prepare and submit a project completion report within six months of the credit closing date (para 4.15). 6.2 The following would be conditions of credit effectiveness: (a) Submission of a plan, acceptable to IDA, for the establishment and operation of the textbook rental scheme in primary schools, starting in school year 1991/92, including operation of the Textbook Fund, arrangements for the collection, safekeeping and use of the fees collected and the Government's contribution to the Fund to cover book replacements (para 3.14); and (b) (i) Submission to IDA, for review and comment, of the findings of two studies concerning, respectively, the establishment and operation of schools run by individuals, private groups and communities, and the proposed liberalization of fees charged by these schools; and (ii) raise the ceiling applicable to such fees by not less than 10% as of school year 1991/92 (para 3.32); (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 the project accounts (para 4.14). 6.3 Reommend.tio. Subject to the above terms and conditions, the proposed project would be suitable for an IDA credit of US$24.0 million equivalent to Burkina Faso on standard IDA terms, with 40 years maturity. bd.uar (sun)  ANNEX 1-1 Sodal Indkslws otDoveIapuSRt I9 Page 1 of 2 BurkIa Fa 2$-JO 15020Sh Uabef pm, YM _VW qio.i (w) U ghww HUMAN RIESOURC Total pqtula6on (mrs .1989) 1 5.10 62 373 41 M 67 14TOW e opa 5 4. 5 37.9 15-64 * d.pp, " 51.7 503 6MI1 57.6 ASe dWmdwq fado adt ~~~~~~~~~~0.93 0OAS 0.3 p ==nur b - Mm % F*oP 52 6.3 S 331 37.4 59.2 Fun"pr 100_Ow U"d Pi5aIuitiagzw~~~~~~bmm mal* ~~2.0 Li1 2.7 312.0 2.1 4.0 4.0 4.6 52 5.6 3.0 U.bm*adr lodWWmb 2.0 2.0 2.1 28 5. 1.9 P*aedptipl:2000 _im; ,. .. t2.0 674 3 #1 Dw.l aaw n fpt .Sgro P= Whmw O"rlm pop 4L4 47.4 47.0 46.7 29. 30.0 TatMlCfidlity ust_ 635 GAM6 650 6.59 Caaadprvim ~ 1J 5.49 _ . .. _ . -6 C&(-u / wa (15 49) =d$prIDw~8 Uubm pr 100 _ . * 3 _ .. _ Rl . 75 _ Cgdsmhuaprhm u. 22 22.6 1.0 15. 9.9 LI1 pwdmmv h. 192.6 159.0 Jg J_ya~~~~~~~~~~~~~~~~~~~~~~I _m ..156 L 661gi I.5 ovaou 3LS~~~28. 42. 47.6 51.0 61.9 finl 39.9 44.0 49.3 5.7 62.7 LA wu (15.61) Tallflb of31 4.9 194 1,371 244 3 s 046 4U1 41L4 273 3sJ 302 Fun=per 1e0_u Utb - 0 ~br- Ranulti arm awE1*Oaim;U 577 S1 41.3 49.3 St!1 Puul0pMe ero *om 55.a 53 486 31134 35.0 22.6 EAumlhml aaiinhh ethha fern b yn mpimd: _ . _ _ _ _ NATUL4 SOURCU Arm . .as 274 274 274 2.066 369 21,M hod ~ ~ ~ = 414 4B 4f.