Djibouti - Manpower and Education Development Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 15701 IMPLEMENTATION COMPLETION REPORT DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT (Credit 2080-DJI) June 7, 1996 Population and Human Resources Division East Africa Department Africa Region This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT CURRENCY EQUIVALENTS At the time of appraisal FD 176.8= US$ 1 FD 100 = US$ 0.56 At the time of project completion mission FD 176 =US$ 1 FD 100 = US$ 0.57 WEIGHTS AND MEASURES Metric system FISCAL YEAR OF BORROWER January 1 - December 31 SCHOOL YEAR OF BORROWER October - June ABBREVIATIONS AND ACRONYMS AfDF African Development Fund (Fonds Africaine de Developpement) BEPE Project Implementation Unit (Bureau d'execution des projets d'education) CNFA National Training Center for Adults (Centre Nationale pour la Formation desAdultes) CNFE National Council for Training and Employment (Conseil National de la Formation et de I 'emploi) CRIPEN National Center for Education Research, Information and Production (Centre de Recherche, d Information et de Production de I'Education Nationale) DGEN National Education General Directorate (Direction Generale de l'Education Nationale) DUL Department of Public Works and Housing (Direction de 1Urbanisme et Logement) FED European Development Fund (Fonds Europeen de Developpement) IDA International Development Association (Association internationale de developpement) MEN Ministry of National Education (Mfinistere de l'Education Nationale) MFEN Ministry of Finance and National Economy (Ainistere des Finances et de l'Economie Nationale) MTPUL Ministry of Public Works, Urban Planning and Housing (Ministere des Travaux Publics, de 1'Urbanisme et du Logement) MTPS Ministry of Labor and Welfare (Ministere du Travail et de la Prevoyance Sociale) MTFP Ministry of Labor and Vocational Training (Ainistere du Travail et de la Formation Professionnelle) SNE National Employment Service (Service Nationale de 1 Emploi) SAR Staff Appraisal Report (Rapport d evaluation) SPE Service for Educational Planning (Service de la Planification de I Education) UNDP United Nations Development Program (Programme des Nations- Unies pour le developpement) FOR OFFICIAL USE ONLY Table of Contents Preface EVALUATION SUMMARY ................................... ..... i-vn PART I: IMPLEMENTATION ASSESSMENT .............1............... A Statement and Evaluation of Objectives . ...................1...... B. Achievement of Project Objectives ...........................................3 C. Implementation Record and Major Factors Affecting The Project....................................................7 D. Project Sustainability ............. ..................................9 E. Bank's Performance ..................................... .........10 F. Borrower's Performance ..................1.... ..................1 G. Assessment of Outcome ............................................12 H. Future Operations ...........................13 I Lessons Learned .................................................14 PART I: STATISTICAL ANNEXES Table 1: Summary of Assessments Table 2: Related Bank Credits Table 3: Project Timetable Table 4: Credit Disbursements: Cumulative Estimated & Actual Table 5: Key Indicators for Project Implementation Table 6: Key Indicators for Future Operations Table 7: Studies Included in the Project Table 8: Project Costs Table 9: Project Financing Table 10: Status of Legal Covenants Table 11: Compliance with Operational Manual Statements Table 12: Bank Resources: Staff Inputs Table 13: Bank Resources: Missions APPENDICES Appendix A: Mission Aide-Memoire Appendix B: Borrower Contribution to the ICR Appendix C: Summary of Cofinanciers' Contribution to ICR Appendix D: Expansion of Primary Education Appendix E: Recurrent Costs - Primary Education Appendix F: Estimated and Actual Costs - Primary School Construction Appendix G: Map of Djibouti Manpower and Education Development Project This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed wihout World Bank authorization.  IMPLEMENTATION COMPLETION REPORT DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT (CR. NO. 2080-DJI) PREFACE This is the Implementation Completion Report (ICR) for the Manpower and Education Development Project in Djibouti, for which Cr. 2080-DJI in the amount of SDR 4.6 million (US$ 5.8 million at the prevailing exchange rate) was approved on December 21, 1989, and made effective on July 10, 1990. The credit was closed on October 31, 1995. The original closing date was March 31, 1995. The total amount disbursed was SDR 4.55 million or equivalent to US$ 6.55 million. The last disbursement took place on December 12, 1995. The remaining balance, estimated to be about SDR 52,000 (US$ 75,000 equivalent) will be canceled. (The actual amount of disbursement increased by US$ 0.73 million to US$ 6.55 million because of favorable exchange rate fluctuation between the SDR and US dollar). Cofinancing for the project was provided by the European Development Fund and the United Nations Development Program. Mr. Mario Cecere and Mrs. Khadija Khoudari (consultants and ICR mission members) contributed to the preparation of the ICR The ICR was finalized by Ms. Marilou Bradley (Task Manager, AF2PH). The ICR was reviewed by Messrs. Jacob van Lutsenburg Maas, Division Chief, and Surendra Agarwal, Project Advisor. Preparation of this ICR began during the completion mission (October 2-18, 1995). The mission visited the construction sites of four primary schools, one lower secondary school, the offices of two regional primary education inspectorates, and the National Center for Education Research, Information and Production. This report is based on the completion mission's observations and discussions during the field visits as well as discussions with the authorities and staff from the relevant departments of the Ministry of National Education, the Ministry of Labor and Vocational Training, the Prime Ministry, the Treasury, the Project Implementing Unit (BEPE), representatives of cofinancing agencies, and most of the contractors. The mission also conducted a review of project documents and correspondence in the project in preparing this report. The Borrower participated in the preparation of the ICR by contributing views reflected in the mission's Aide-Memoire, by preparing its own final evaluation of project preparation and execution, and by providing comments on the draft ICR.  Evaluation Summary Page i of vii IMPLEMENTATION COMPLETION REPORT DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT (Credit 2080-DJI) EVALUATION SUMMARY Introduction 1. The project under review (Credit 2080-DJI for US$ 5.8 million equivalent) was preceded by the First Education Project (Cr. 1543-DJI), for which the objective was two-fold: (a) increase access to primary education in disadvantaged urban areas and in rural communities; and (b) strengthen the institutional capacity of the Ministry of Education for planning and managing the activities of the education sector. Project Objectives and Description 2. The Manpower and Education Development Project had four objectives: (a) To improve the coordination of vocational training with labor market patterns by developing the technical capacities of the National Employment Service (SNE) and establishing a National Council for Training and Employment (CNFE); (b) To increase access to primary education by establishing four primary schools with a double-shift enrollment capacity of 4,500 students; (c) To upgrade the relevance and quality of education at the primary and lower secondary levels by establishing a National Center for Education Research, Information and Production (CRIPEN) and two regional primary education inspectorates; and (d) To improve the management capacity of the Ministry of National Education (MEN) while reducing costs and better allocating resources by strengthening educational planning and management through specialist services and training. 3. Evaluation of Project Objectives. At the time of project preparation, there was a broad consensus in the Government that: (a) investment in human resources should be a top priority for fostering economic development; and (b) cost efficiency measures were needed in the education sector, while improving access, educational quality and curriculum relevance. The main sectoral issues were: (a) lack of financial resources in the sector; (b) a shortage of trained manpower; (c) poor quality and access to primary education; (d) poor coordination of vocational training with the labor market, and (e) weak management and planning capacity of the Ministry of National Education (MEN). Overall, the project objectives were consistent with the Government's priorities as established in their medium-term education strategy and with the Bank's assistance strategy for Djibouti. However, the process for developing project objectives did not fully take into account the adequacy and sustainability of efforts to increase access to primary education. The feasibility of developing manpower training in line with labor market demands--given the Evaluation Summary Page ii ofvii weak institutional capacity and structural weaknesses in the education, training and employment sectors--was not sufficiently examined. 4. Credit Covenants and Special Agreements. Agreements with the Borrower (Djibouti) were reached on the following issues, namely, that Djibouti will: (a) stafl by September 30, 1990, the Secretariat of CNFE with at least two additional staff members; (b) ensure that at least 90% of primary school teachers are recruited at the level of assistant teacher (instituteur adjoint); (c) exchange views with IDA by May 31 of each year on the proposed work program of the Education Research Center (CRIPEN); (d) exchange views with IDA on the results and follow-up activities, following the completion of each study included in the project; (e) replace, by March 31, 1991, pre-salaries for teacher trainees with reduced allowances for housing benefits; (f) cancel about 60% of the support grant to secondary students, with remaining support awarded according to criteria based on students' socio-economic background, academic performance and gender; and (g) complete and make effective by January 31, 1991, new criteria for awarding fellowships for higher education. (Higher education fellowship budget was to be frozen for the period and new fellowships, under bilateral financing, would be awarded according to criteria taking into account socio-economic background, academic performance, field of study and gender.) 5. In addition to the above agreements, the following conditions of credit effectiveness were also agreed upon: (a) any conditions precedent to the effectiveness of the UNDP and the European Development Fund (FED) Grant Agreement be fulfilled; (b) the Research Center be legally established, the appointment of its National Director, and the authorization of its operating budget for the first year; (c) two commissions of educators be established to review the curricula for primary and for lower secondary education and to adapt them to current socio-cultural and economic conditions; and (d) the statute for primary education inspectors be ratified. 6. There were two conditions of disbursements: (a) the hiring of two additional employees with at least Junior College diplomas by SNE; and (b) the legal establishment of CNFE, including its operationalization. Implementation Experience and Results 7. Overall project outcome was partially satisfactory. (a) Physical objectives have been fully achieved. The construction and equipping of four primary schools in disadvantaged areas, two regional primary education inspectorates, a national center for education research, information and communication, and supplementary works for a lower secondary school have been completed. Textbooks and dictionaries for the last two years of primary education (CM1 and CM2) have been purchased and distributed. While not originally planned as part of the project, the IDA Credit financed additional school equipment, textbooks, and works (construction of staff housing, drainage system, school enclosures) in support of the Balbala Lower Secondary School out of the increased value of the IDA Credit derived from favorable fluctuations in the exchange rate between the SDR and US dollar. (b) Sector policy objectives were partially achieved. The first objective was to improve the quality of primary education. While it is too early to determine whether the overall Evaluation Summary Page iii of vii quality of education has improved, the project nevertheless has taken important measures in support of meeting this objective. To improve student learning, the curricula, including teaching guides, for primary education and first cycle secondary education were modified to take into account the conditions in the country and of the students and their socio-cultural background. Professional training was provided to primary school teachers to improve their effectiveness in the classroom. Primary education supervisors were trained in the areas of school management, organization and planning. In-service training was also provided to pedagogical counselors, head masters and school inspectors. The second objective, to improve access to primary education, was partially achieved. Enrollment capacity in primary schools was to increase by 17% or 4,500 places with the construction of four primary schools operating in double shift. Quantifiable targets for increasing the low gross enrollment rate of 36% in primary education over the project period were not defined in the SAR. However, an analysis of the level of project support demonstrates that the construction of four schools, although all operational in double shift, were not adequate to meet the overall demand of a population with a 3% natural annual growth and to increase gross enrollment rate in primary education. The third objective, to improve the coordination of manpower training with labor market requirements, was partially achieved. An employment observatory was established and an employment data base was developed and is operational. However, while these two facilities were intended to serve a "coordinating" role to improve and guide the process for reconciling manpower training with the needs of the labor market by tracking and evaluating problems associated with training and employment, and maintaining employment data, the efficacy of current employment data is constrained by the employment observatory's weak capability for statistical analysis. The project did not succeed in its efforts to rationalize vocational training through the creation of a National Council for Training and Employment, which would coordinate supply and demand of manpower training. The Council, whose mandate was to assure proper linkages between vocational training and the labor market, propose necessary adjustments in the composition, content, duration and volume of training, and review proposed investments was created by a decree but never became operational. Staff were not appointed to the Secretariat which was to assist the Council in its work. (c) Institutional development objectives were partially achieved by upgrading the professional capacity through training of staff (Education Research Center (CRIPEN), Education Planning Office, National Employment Service, Project Unit). Institutional capacity for coordinating and developing manpower training in line with labor market requirements remains weak, in part because the Secretariat of the National Council for Training and Employment was never staffed. (d) Several financing objectives were partially achieved through the: (a) replacement of pre-salaries of teacher trainees with reduced allowances for housing benefits; (b) recruitment of primary teachers at the instituteur adjoint level; and (c) cancellation of fellowships abroad for upper secondary education. While the above cost-reductions measures have been adopted, the Evaluation Summary Page iv of vii Government has not been able to provide evidence, satisfactory to IDA, that savings derived from such measures are being used to benefit the education sector. 8. Total project costs were originally estimated at US$ 7.52 million: to be financed by US$ 5.82 million from IDA Credit; US$ 0.87 million from the Government of Djibouti; US$ 0.40 million from the European Development Bank (FED); and US$ 0.42 million from UNDP. Due to favorable fluctuations in the exchange rate between the SDR and US dollar, the proceeds of the IDA credit increased by US$ 0.81 million to US$ 6.63 million. With the additional proceeds, IDA agreed to finance additional activities for the Balbala Lower Secondary School which was built and partially equipped under a Japanese Grant. These activities included works (staff housing, drainage and fencing), additional school equipment and textbooks, none of which were originally provided for under the Japanese Grant. Due to a reported shortfall in UNDP's budget, IDA agreed to finance UNDP's originally planned support for 12 months of technical assistance in educational planning. 9. The project took a little more than five years to complete. Most of the project components closed on March 31, 1995. An exception to this is the civil works component (financed under Category 1) which was extended twice by a total of 7 months, and closed on October 31, 1995. IDA disbursement was SDR 4.55 million or US$ 6.55 million equivalent. The estimated undisbursed balance of SDR 52,000 or US$ 75,000 equivalent will be canceled. The Government provided 100% (US$ 0.87 million equivalent) of its planned contribution as agreed upon during project appraisal. Total UNDP disbursement was US$ 300,000. FED disbursements were confirmed following the ICR mission;' total disbursement was Ecu 220,467 or US$ 283,7412. 10. A number of factors, both beyond and within Government control, affected project implementation. Some of the factors which were beyond Government control were: (a) internal conflicts (1991-1993) and the consequent lack of security in some project sites; (b) severe flooding in Djibouti-City and a tornado in the north; (c) technical assistance was not always geared to transferring appropriates skills to nationals; and (d) inadequate Bank supervision. Other factors which were subject to Government control were: (a) late payments and the untimely availability of counterpart funds; (b) low capacity of central and sector administration; (c) heavily centralized and cumbersome administrative systems; and (d) weak planning, coordination, and monitoring of project activities. One factor that was partially within Government control is the growing budget deficit. 11. Project Sustainability. Several signs indicate that project sustainability is uncertain. A further deterioration of the present macro-economic situation would result in a reduction of resources allocated to education, which in turn, would have serious implications for improving Information on the total amounts disbursed by FED could not be readily provided during the ICR mission because there were a few staff in the FED office at the time, most of whom did not have full knowledge of the project and the component FED was supporting. 2 Information on historical exchange rates not available, amount in US$ equivalent based on current exchange rate of Ecu 1.287 =US$1. Evaluation Summary Page v of vii access to and quality of education. The schools constructed under the project might experience a reduction in the provision of textbooks and other educational materials; school maintenance and upkeep, already inadequate, might worsen due to further cuts in the operating budget. Additional cuts in teachers' salaries might result in loss of motivation among teachers. Further reductions in the sector's budget would not be consistent with the needs of a population with a 3% natural annual growth rate; it would not reverse the decline in gross enrollment rates in primary education. With Djibouti's present economic situation, achieving universal primary education in the medium-term would be an overwhelming challenge. Against this bleak scenario, however, there is the likelihood of sustaining some important activities implemented by the project. These relate to improvements made with regard to the education programs for primary education and lower secondary education, in general, and the curricula, in particular. The curricula, including teaching guides and other educational materials were modified; in the case of primary education, they are in use. Limited resources would be required to complete the adoption of the new curricula for lower secondary education and to evaluate the impact of the curricula on student learning and achievement. 12. Bank Performance. With the exception of the vocational training component, the Bank's performance during the identification and preparation phase was generally satisfactory. The objectives were consistent with the Government's medium-term strategy in the education sector and with the Bank's assistance strategy in Djibouti. The Bank's performance was less satisfactory at project appraisal. Insufficient attention was paid to the institutional aspects of the project; structural weaknesses in the vocational training and employment sectors were not thoroughly addressed. Mechanisms for monitoring and evaluating the execution of project activities and project outcomes were not sufficiently developed. Supervision was inadequate. Time spent in the field was limited, thereby reducing the scope for supervising the overall progress of project execution. In some instances, less attention was paid to the more qualitative aspects of project interventions. 13. Borrower Performance. Overall, the Borrower's performance was satisfactory during project preparation. The Borrower, however, could have been more realistic and functional in its approach to improving the coordination of vocational training. It was less satisfactory during project implementation, which suffered from heavily centralized administrative procedures, insufficient experience of project staff, and lack of counterpart funds. Intra-governmental coordination between the three implementing agencies was weak. The Borrower was not always effective in taking appropriate measures to resolve problems impeding project execution. The process of awarding contracts for works was deficient. The allocation, use, and performance of technical assistance was not always adequately evaluated. However, it should be recognized that, despite all the weaknesses, the project was implemented with a minimum time overrun. The implementation unit (BEPE) was initially staffed with personnel lacking experience with Bank procedures. Once strengthened with better trained and more highly motivated staff, the Unit acquired greater efficiency in executing project activities. Summary of Findings, Future Operations and Lessons Learned 14. Overall, the outcome of the Project can be considered partially satisfactory. Four new primary schools, operating in double shift, ensure an increased access of 4,500 children. Evaluation Summary Page vi ofvii Enrollment capacity in lower secondary education has also increased by 1,200 places. Curricula for primary and first cycle secondary education, including teacher training, have been modified to better respond to the realities of the country and to improve student learning and achievement. New evaluation mechanisms have been developed to allow a more efficient assessment of student achievement. The effectiveness of teachers, supervisors, head masters and counselors, and inspectors at the primary school level have been strengthened through staff training. Several studies have been completed and are currently being evaluated with a view to strengthen educational planning. A study to guide the reorganization of the Directorate of Employment and Vocational Training and the National Training Center was also completed; the recommendations of the study have been adopted. The Project was also partially successful in rationalizing educational resources, through the implementation of several cost-reduction measures (para. 7(d)). 15. The achievements highlighted above are all important to Djibouti's development agenda. There were some shortcomings, however. Project interventions aimed at increasing access to primary education were not adequate in meeting the country's overall demand due to population growth. On balance, the support provided by the project did not increase the overall gross enrollment rate. Efforts to develop appropriate linkages between manpower training and labor market demand did not succeed. While an employment observatory was established and an employment data base developed and put into use, its capability to effectively coordinate manpower training with labor demand remains limited. The observatory's capacity for statistical analysis remains weak. The National Council for Training and Employment was created but its Secretariat was never staffed. The project was not able to effectively embark on its efforts to rationalize vocational training and develop the institutional capacity for coordinating manpower training and labor market requirements. 16. The Borrower has indicated a number of activities aimed at maximizing project benefits, along the lines of its strategy for increased access to education and for improving the quality of education. Broadly, such activities include: (a) reduction of gender inequalities in the access to education; (b) ongoing curriculum review; (c) evaluation of the impact of the new curricula; (d) strengthening teacher training; (e) strengthening educational planning capabilities; and (f) school maintenance. 17. The Association plans to monitor the Project's performance, in particular, in the increase in gross enrollment rate in primary education, the adoption of the new curricula for first cycle secondary education, and the evaluation of pedagogical achievements. The following key indicators for project monitoring will be adopted: (a) Enrollment ratios to monitor increased access in primary schools; (b) Adoption of new curricula in first cycle secondary education, starting school year 1996-97; (c) Impact of new curricula for primary and first cycle secondary education. Review the outcome of the new curricula evaluation operated by the Ministry of National Education; Evaluation Summary Page vii of vii (d) Quality and effectiveness of teaching in primary and first cycle secondary education. Review the outcomes of the new evaluation methods for pedagogical achievement recently introduced in the system; and (e) School maintenance, with adequate allocation of resources and greater participation of local communities. The ICR mission discussed the overall plan for monitoring future operations with the DGEN. The Association will require periodic reports to monitor the above indicators. 18. Lessons learned from the project are: (a) Planning, coordination and monitoring mechanisms should be well developed prior to project-start up, especially when projects have to be implemented by several agencies. Key performance indicators, both qualitative and quantitative, should be clearly defined in the SAR to permit the efficient monitoring of project activities. (b) Sequencing core training and project execution is essential for capacity building and successful project implementation. (c) Institutional strengthening occurs only with strong government commitment and firm political decision making. These should be obtained early in the project preparation phase, and closely monitored during implementation. (d) Stakeholder participation in decision-making is essential for fostering ownership of project activities and outcomes. (e) Allocation of Bank resources for supervision should consider project scope and complexity.  Part I: Implementation Assessment Page 1 of 14 PART I: PROJECT IMPLEMENTATION ASSESSMENT 1. Limited natural resources and the shortage of qualified national personnel hinder Djibouti's economic development. While the country emphasizes the development of human resources as a means to advance its economic development, almost two-thirds of the adult population are illiterate. Djibouti's formal education system is closely modeled on the French system. It consists of six years of primary education, followed by four years of lower and three years of upper secondary education, both divided into general and technical streams. When the Project was appraised in 1989, the whole system showed high unit costs at all education levels, but the corresponding outputs were modest. Adult illiteracy was high, primary enrollment was low, and access rates to secondary education were decreasing. In addition, the country had a limited non-formal education and training system which enrolled about 2,000 trainees, and was scattered through different ministries, national corporations and associations, resulting in overlapping and inefficient use of resources. Despite the serious lack of technical and administrative skills, which had created a dependence on expatriates, the technical and vocational education was largely geared to skills which were not in demand, while institutions in charge of manpower, education and training were weak. There was a shortage of trained manpower, especially at the middle and higher professional and management levels, with excess training capacity for some lower level skills (e.g., masonry, plumbing and mechanics). 2. The substantial improvements in education made by the country after Independence have been eroded by high population growth, an influx of refugees from Somalia and Ethiopia, and expanding budget deficit. These improvements were further aggravated by the domestic political unrest. The education system reached only a relatively small percentage of the population. Budgetary constraints created a serious challenge regarding maintenance of educational quality. 3. Improving the quality of the education system, making it more relevant to the local conditions, improving the management and financing of the system to allow higher access rates, and establishing rational linkages to labor market needs in an increasingly challenging environment was therefore central to Djibouti's economic development strategy. The Manpower and Education Development Project aimed at supporting this long term strategy. A. STATEMENT AND EVALUATION OF OBJECTIVES 4. The Manpower and Education Development Project aimed to establish a framework for expanding the education sector by increasing the cost-efficiency of the sector, improving the relevance and quality of education, and strengthening institutional capacity. The Project had four specific objectives: (a) to improve the coordination of vocational training with labor market patterns; (b) to increase access to primary education; (c) to upgrade the relevance and quality of education at the primary and lower secondary levels; and (d) to improve the management capacity of the Ministry of National Education (MEN) while reducing costs and better allocating resources. Part 1: Implementation Assessment Page 2 of 14 5. The project included four components: (a) The Coordination of Vocational Training component aimed to strengthen the coordination of vocational training with the labor market by developing the technical capacities of the National Employment Service (SNE) and establishing a coordinating body (the National Council for Training and Employment, (CNFE)), in charge of planning and policy making in this sub-sector. Specific project activities included: (i) development of a data base on national employment; (ii) implementation of studies geared to redefining the role of the Vocational Training Center of the Ministry of Labor and Welfare (MTPS); (iii) restructuring of the Directorate of Training and Employment within MTPS; (iv) training in the areas of labor statistics, administration, and employment, qualification and training analysis; and (v) provision of equipment and materials to SNE and CNFE. (b) The Access to Primary Education component aimed to expand the capacity of primary schools, through: (i) the construction, equipping, and furnishing of three primary schools (36 classrooms) in the suburbs of Djibouti-city and one primary school (9 classrooms) in the southern region of Ali Sabieh to accommodate a double-shift operation with a combined enrollment capacity of 4,500 students; and (ii) the provision of textbooks and dictionaries in French and Arabic for the last two years of primary education. (c) The Educational Quality component aimed to improve the quality of educational programs for primary and lower secondary education and their relevance to the realities of the country. Pedagogical support and leadership required in these areas was to be provided by CRIPEN, a research center to be established under the project. Project activities included: (i) the construction, equipping and furnishing of CRIPEN; (ii) the space extension of the Printshop; (iii) the construction, equipping and furnishing of two regional primary education inspectorates; (iv) the review and adaptation of the curricula for primary and lower secondary education, including the development of appropriate teaching guides; (v) the strengthening of pre- and in-service teacher training; and (vi) the provision of staff training for primary school directors, CRIPEN educators, and primary education inspectors. (d) The Educational Management component aimed to strengthen MEN's overall capacity for planning and management and the National Education General Directorate's (DGEN) operational capabilities for project management. Project activities included: (i) technical assistance; (ii) provision for staff training in the areas of budgeting, administration and personnel, planning, and school mapping; (iii) provision for local training of about 60 primary education supervisors; (iv) equipment and furniture; and (v) provision for further sector studies and for the possible preparation of future investments. 6. The project objectives were consistent with the policies outlined in the medium-term education strategy developed by the Government to address the main issues of the education sector. The strategy consisted of the following elements: a) Coordination of Vocational Training with the Labor Market, comprising the creation of a vocational training coordination body; b) Access to Education, to include increase in primary education enrollment capacity by 4,500; c) Quality of Education, to make primary and secondary school curricula more relevant, and to Part 1: Implementation Assessment Pave 3 of 14 strengthen teacher training; and, d) Costs and Financing, which proposed measures to strengthen the educational planning and management. A five-year Education Investment Program for the period 1990-1994 was developed by the Government as the vehicle to pursue the strategy, and it was agreed upon by IDA. Project objectives were in line with the Bank's development strategy for the country which, in agreement with the Government's strategy and investment program, placed emphasis on manpower and education development. 7. Overall, the objectives were clearly stated and reflected the Government's determination to address the most critical issues affecting the education system. In some cases, however, there were ambiguities between the objectives and the design, preparation, and scope of project interventions. The support provided to improve access to primary education was inadequate, inequitable and unsustainable, both in terms of meeting the demands of a growing population and in increasing overall gross enrollment rate. The design and preparation of interventions in support of developing linkages between vocational training and labor market demands did not thoroughly evaluate the structural weaknesses that existed in the education, vocational training and employment sectors or the socio-economic uncertainties existing in the country. Key indicators for project performance, both qualitative and quantitative, were not defined in the SAR. Mechanisms for monitoring and coordinating project activities implemented by several agencies were also not sufficiently addressed. The vocational training component was not logically designed and structured effectively. For instance, the creation of the National Council for Training and Employment did not contain any specific definition of its desired membership, its operational mechanisms, and the timing and the type of expected outcomes. Although the SAR identified risks associated with inadequate staffing and weak technical capacity in the institutions involved in the project, appropriate mechanisms to minimize such risks were not developed. Technical assistance was included without a clear definition of each expert's responsibilities or the desired development outcome to be achieved. B. ACHIEVEMENT OF PROJECT OBJECTIVES 8. Most project components have been completed, and some are already operational (a) Access to Primary Education (45% of project). All four primary schools (45 classrooms) were built, equipped, and are all operating in double-shift. Mathematics textbooks and science textbooks, and French and Arabic dictionaries for the last two years of primary education were purchased and distributed to pupils. The construction quality of some schools, however, is poor. The design of one school in Balbala did not adequately address the climatic conditions in the region; thus the building's foundation is slowly deteriorating due to absorption of salinity from the soil. In some cases, workmanship is poor. The school built in Saline Ouest is not of quality standards; the ceiling insulation boards are already deteriorating and will soon need replacement. On average, the schools lack proper maintenance and upkeep; in some schools the toilets are no longer operational. Poor maintenance and upkeep can be attributed to two factors. First, funds allocated for school maintenance were inadequate and not provided regularly. Second, efforts have been limited in mobilizing the participation of local communities in school maintenance and upkeep, an important factor which was also observed in the First Education Project. Part I: Implementation Assessment Page 4 of 14 (b) Quality of Education (33% of project). The construction of the new facilities of CRIPEN and the regional primary education inspectorate in Tadjourah was recently completed. The regional primary education inspectorate in Dikhil is operational. The curriculum for primary education, including appropriate teaching guides, has been modified in line with the realities of the country, has been tested and is now in use. The curriculum for first cycle secondary education was also modified but it has not yet been tested; adoption of the new curricula is planned for the next school year. (c) Educational Management (I1% of project). Technical assistance was utilized at about 60%. A study on the cost and financing of education, a three-pronged study on the overall performance of the education system (which includes an analysis of the labor market and an action plan), a five-year investment plan for the period 1994-1999, and a school mapping were carried out. These studies are currently being evaluated by SPE, with a view to adopting the recommendations to strengthen educational planning and management. A planned Tracer Study on vocational trainees was not implemented. The training resources planned for strengthening educational planning were partially utilized, as UNDP canceled the remaining funds (approximately US$100,000) from its original commitment. The funds provided for incremental operating costs, for accounts auditing, and for training 60 supervisors were utilized. (d) Coordination of Vocational Training (11% of project). Two sub-components were prepared to improve the coordination of vocational training. The first sub-component, designed to support the National Employment Service (SNE), did not fully utilize the technical assistance and training provided by the Project. The foreign expert recruited under FED financing to provide technical assistance in the area of employment and qualification analysis left before completing his assignment. Although two additional staff were hired to strengthen the SNE, they have not received the requisite training which was to be provided by the foreign expert. With the support provided for this component, an employment observatory was established and an employment data base system was developed and put into use. Technical capacity for statistical analysis remains weak, however. The second sub-component, designed to support the National Council for Training and Employment (CNFE), failed to utilize the training program provided for developing the Council's technical capabilities in handling problems related to employment evaluation and training. The CNFE was created by decree but was not able to fulfill its mandate. Staff were not appointed to the Secretariat which was to assist the Council in its work. Of the three studies planned, two were partially carried out. Overall, the project objectives were partially achieved. Project outcomes were partially satisfactory, as follows: 9. Physical objectives, the largest share of the project, were achieved despite difficulties in the first two years of project implementation, late payments to contractors, delays due to security reasons, and natural disasters which occurred in some of the project sites. (a) Primary School Construction Program. Forty-five primary school classrooms were constructed and equipped and are all operational (para 8(a)). At appraisal, the unit cost per student was estimated at US$ 665.00 (US$ 555 for civil works, US$ 59 for textbooks and educational materials, and US$ 51 for furniture/equipment). The actual unit cost per student was Part I: Implementation Assessment Page 5 of 14 approximately US$ 600 (US$ 491 for civil works, US$ 44 for textbooks and educational materials, and US$ 65 for furniture/equipment). (b) Regional Primary Education Inspectorates. The construction of the regional primary education inspectorate office in Dikhil was completed; the office is fully operational. The construction of the regional primary education inspectorate office in Tadjourah was completed in October 1995, after long delays due to security reasons (1991-1994) and a recent tornado (mid- 1995). (c) National Center for Education Research, Information and Production (CRIPEN). The construction of the new offices of CRIPEN was completed in October, 1995. In general, the workmanship is poor. Some sections of both the floor and walls are not leveled; some windows are not fitted or secured properly on the wall. In addition, small remaining jobs were left unattended. Regretfully, the master plan did not consider the construction of a new printshop (in the same locale of the new CRIPEN office), which is vital for the operations and the efficiency of the center. Although project funds were used to extend the space of the existing printshop in CRIPEN's old offices, CRIPEN continues to suffer from lack of space, to operate fully. (d) Balbala Lower Secondary School. With the remaining funds of the IDA Credit, additional works and school equipment were provided to the newly constructed lower secondary school in Balbala, financed by a Japanese Grant. Three staff houses and school enclosures were constructed and a drainage system installed. Eight-thousand textbooks for first cycle secondary education were procured and are gradually being distributed to students. Furniture, laboratory equipment and other school equipment were also provided to the school. IDA agreed to finance these additional works and goods from the remaining proceeds of the IDA Credit, but the Development Credit Agreement was not amended accordingly. 10. Sector policy objectives, the second largest share of the project, were partially achieved (a) The objectives to increase access to and quality of education were partially achieved. Primary schools were built and equipped, ensuring an increased enrollment capacity of 4,500 places (para. 8(a)). While student attendance in primary school increased in three of Djibouti's five districts, the overall gross enrollment rate at the primary school level is estimated to be under 40%. Quantifiable targets for increasing the low gross enrollment rate of 36% in primary education were not defined in the SAR. However, an analysis of the level of project support demonstrates that the construction of four schools, while expanding access in some districts, was not adequate to meet the overall demand of a population growing at an annual rate of 3%.3 The unforeseen armed rebellion in the north during the period 1992-1994, which severely disrupted primary school operations in the districts of Tadjourah and Obock, further undermined efforts to increase the gross enrollment rate. While access to primary education in the three districts (Djibouti City, Ali-Sabieh, Dikhil) covered by the project expanded, the overall primary education gross enrollment rate has not increased. On balance, support provided by the project prevented the overall gross enrollment rate from declining. During the project period (1989-1995), a 3 Given the high in-flows of refugees and immigrants from Ethiopia, Somalia, and Eritrea, Djibouti's overall population growth rate is estimated at 6%, of which 3% represents the natural increase. Part I: Implementation Assessment Page 6 of 14 minimum of approximately 52 additional schools, operating in double shift, were needed to keep pace with the country's 3% natural increase and to prevent the already-low gross enrollment rate of 36% from declining. The 52 schools, providing an enrollment capacity of 5,233 places, were financed as follows: 4 schools or 45 classrooms, providing an enrollment capacity of 4,500 places were financed by the project; the additional 3 schools or 9 classrooms were financed by the First Education Project (Credit No. 1543-DJI). The total number of classrooms built during the project period may have been adequate to meet the short-term physical needs of the country, but it did not increase the overall gross enrollment rate in primary education. Its sustainability, both in terms of meeting the needs of a growing population, and increasing the overall gross enrollment rate, is uncertain. While it is too early to determine whether the overall quality of education has improved, the project has nevertheless taken important measures in support of meeting this objective in the medium-term. Educational programs, including the curricula for primary education and first cycle secondary education and teaching guides, have been modified to take into account the conditions in the country and of the students and their socio-cultural background. Primary school teachers have undergone professional training to enhance their effectiveness in the classroom; supervisors were trained in the areas of school management, organization, and planning. (b) The objective of improving educational planning and management was partially achieved. Several key studies have been completed and are being evaluated by SPE (para. 8(c)). The school map financed by the project is of poor quality. The government intends to bring basic education to the rural and remote communities. A school map is an indispensable tool towards this end, and SPE is therefore engaged in a new school mapping exercise. (c) The objective of coordinating vocational training with labor market demand was partially achieved. The three experts hired to conduct a study for the reorganization of the Directorate of Employment and Vocational Training, the SNE, and the National Center for Adult Education (CNFA), successfully completed their task. The study is of good quality, and the Ministry of Labor and Vocational Training is gradually adopting the study's recommendations and action plan: CNFA has already been reorganized, and it is planning to restructure its training programs to better respond to labor market requirements. The experts worked in close collaboration with their local counterparts, who benefited from such experience, and developed an employment observatory with a data-base system. The system is already operational, and is proving to be a useful tool for the management of employment data, for monitoring unemployment, and for undertaking employment plans. However, the observatory needs to strengthen its statistical analysis capability. A three-pronged study (establishment of basic standard categories, structuring of permanent statistic inquiries, and qualitative and quantitative evaluations) to be implemented during three consecutive years was planned to strengthen the capacity of SNE. The expert recruited for this assignment left after 2 years, having completed only the first phase of the study. The expert was not flly effective in training the two local counterparts hired by SNE. The study is not being utilized by SNE. The project failed in its efforts to rationalize vocational training through the establishment of a National Council for Training and Employment (NCTE), which was to coordinate the supply and demand of manpower training. The Council never assumed its responsibilities to develop proper linkages between Part I: Implementation Assessment Paie 7 of 14 vocational training and labor market requirements, to propose adjustments in the composition, content, duration and volume of training, or to review proposed investments. 11. Institutional development objectives were partially achieved by upgrading the professional capacity of several units through training of staff (CRIPEN, Educational Planning Office, National Employment Service, and the Project Unit); additional staff were also recruited for most of these units. Primary education supervisors have been trained in the areas of school management, organization and planning. Official records show that supervisions are now more frequent and more effective. In-service training was provided to teachers, pedagogical counselors, headmasters, and inspectors. New evaluation methods for pedagogical achievement were introduced. In some cases, the transfer of knowledge and skills from a foreign expert to local counterparts was not achieved. In one case, the foreign expert left before his task was completed; in another case, the foreign expert recruited did not demonstrate any inclination to train local counterparts. Staff appointments to NCTE's secretariat were not made. Institutional capacity for coordinating and developing manpower training in line with labor market requirements continues to be weak (para. 8(d)). 12. Financing objectives were partially achieved. To rationalize resource use in the sector, the project adopted the following measures: (a) replacement of teacher trainee's pre-salary with a reduced housing allowance; (b) recruitment of primary education teachers at the instituteur adjoint level; and (c) cancellation of fellowships abroad for upper secondary education. During the ICR mission, IDA requested the government to confirm whether economies derived from such measures are in fact being used by the education sector. While projected savings were provided by SPE (see Annex E), the Government has not formally provided evidence, satisfactory to IDA, that savings have been derived from the measures and that they are being used to benefit the education sector. The program to reduce support grants for secondary education by at least 60% ---with the remaining support to be awarded according to criteria taking into account the student's socio-economic background, academic performance and gender--was prepared but is not yet adopted. The project failed in adopting new criteria for awarding fellowships for higher education. The higher education fellowship budget was to be frozen for the period and new fellowships, under bi-lateral financing, would be awarded according to criteria taking into account socio-economic background, academic performance, field of study, and gender. C. IMPLEMENTATION RECORD AND MAJOR FACTORS AFFECTING THE PROJECT Implementation Record 13. The credit was extended twice by a total of seven months. Major civil works have been completed. Discounting factors related to the security situation in some project sites and natural disasters which Djibouti experienced during the project period, execution and completion of works have been delayed, on average, by eight months. These delays can be attributed to the following factors: unfamiliarity with Bank guidelines for bid/contract preparation, differing views on technical specifications, deficient process for awarding contracts, poor workmanship, late Part I: Implementation Assessment Page 8 of 14 payments, and untimely provision of counterpart funds. The construction of the four primary schools was delayed due to significant controversies during bid evaluations. The quality of construction is generally poor, thus requiring additional work to be carried out in three schools. The selection of contractors, and more importantly, their qualifications and experience were not always carefully considered. For instance, the contractor selected to build the primary school in Ali Sabieh (in which workmanship is poor) was again selected for the construction of the new CRIPEN center which, not surprisingly, is also of poor quality. School maintenance and upkeep is generally poor; in some schools, toilets are totally non-operational. The construction of the two regional primary education inspectorates in Dikhil and Tadjourah were delayed due to slow payments. In the case of the Tadjourah inspectorate, works were also suspended in 1991 for security reasons, and the government had to re-negotiate with the contractor for the resumption of work under different conditions. Work was resumed in 1994 and finally completed in late October, 1995. During this time frame, supplementary work was carried out to repair damages resulting from a tornado in July, 1995. 14. The project was initially expected to cost US$ 7.52 million, of which IDA was to finance US$ 5.82 million. The European Development Fund's original commitment was for US$ 0.40 million; it disbursed Ecu 220,467 (equivalent to US$ 283,741).4 UNDP's original commitment was for US$ 0.42 million; it disbursed US$ 0.3 million. The appreciation of the US dollar against SDR increased the proceeds of the IDA credit to US$ 6.63 million. From the additional funds, IDA agreed to finance additional works (staff housing, draining and fencing) and school equipment, including textbooks for the newly constructed Balbala Lower Secondary School, financed under a Japanese Grant. 15. Special Account. In the particular case of Djibouti, the project's Special Account mechanism did not work properly, mainly because it was maintained in the Treasury and therefore was subjected to very centralized bureaucratic and administrative procedures. This situation produced unacceptable delays in processing payments, which frequently blocked the timely execution of project activities. The problem of maintaining the special account in the Treasury was raised with the authorities on several occasions, to the point that IDA was considering cancellation of the special account if the account was not transferred to a commercial bank in a timely manner. While delays in processing of payments were reduced in the last twelve months, the special account was still maintained in the Treasury. 16. Project co-financing. UNDP was to originally provide US$ 0.42 million to support activities aimed at strengthening educational planning and management; total disbursement was US$ 0.3 million. Due to a reported shortfall in the organization's budget in 1993/94, UNDP announced its inability to continue funding the training abroad of five staff of MIEN in the areas of budgeting, general administration and personnel, planning, and school mapping. As a result, UNDP canceled the unused balance of approximately US$ 0.1 million. Further costs associated with the planned training were met by the IDA Credit. The European Development Fund (FED) was to originally provide US$ 0.4 million in support of developing the vocational training sub- 4 US$ equivalent based on current exchange rate of Ecu 1.287 to US$1. Part 1: Implementation Assessment Page 9 of 14 sector; it disbursed ECU 220, 467 (US$ 283,741) to finance technical assistance, training, and equipment. Major Factors Affecting the Project 17. Major factors, not subject to Government control, included: (a) unstable security situation in the north that halted the execution of works; (b) natural disasters (severe flood in Djibouti-City and a tornado in the north) which delayed execution/completion of works; (c) the provision of technical assistance was not always geared to transferring appropriate skills and knowledge to nationals; and (d) inadequate Bank supervision. 18. Major factors subject to Government control included: (a) heavily centralized and inefficient administrative systems, leading to poor coordination between the three implementing agencies, delays in payments and in general, decreased efficiency; (b) insufficient experience, in the early stages of project implementation, of project implementation staff in work planning and procurement procedures, which led in part to delays in executing project activities; (c) weak monitoring and reporting mechanisms; (d) weak commitment to develop linkages between vocational training and labor market demands, and the subsequent decision-making process to make the training system more efficient; and (e) deficiencies in contract awarding practices and in the monitoring and follow-up of progress achieved in implementing co-financed project interventions. One factor that was partially within Government control was the growing budget deficit, which led to untimely availability of counterpart funds, and in some cases, irregular budgetary provisions for the schools' operating costs. D. PROJECT SUSTAINABHITY 19. Several signs indicate that project sustainability is uncertain. A further deterioration of the present macro-economic situation would result in a reduction of financial and material resources allocated to education, which in turn, would have serious implications for improving access to and quality of education. The schools constructed under the project might experience a reduction in the provision of textbooks and other educational materials; school maintenance and upkeep, already inadequate, might worsen due to further cuts in the operating budget. Additional cuts in teachers' salaries might result in loss of motivation among teachers which, in turn, would affect student learning and achievement. Overall, a further reduction in the resources allocated to the education sector would prevent further school expansion, which is necessary to meet the demands of a growing population; it would also promote a further decline in the overall gross enrollment rate in primary education. Holding the population size constant at 500,000, and applying the unit cost per student of US$ 600 (which excludes operating costs), approximately US$ 34.5 million would be required to achieve universal primary education in Djibouti. This amount, which does not include the additional resources required to cover operating costs (teachers' salaries, school operations and maintenance), poses an extremely heavy burden on the country's constrained resources. While the Government is committed to improve the performance of the education system, particularly with regard to primary and lower secondary education, it is unlikely that substantial improvements will be achieved in the medium-term given the country's deteriorating economic situation. Against this bleak although realistic scenario, it must be recognized that there Part 1: Implementation Assessment Page 10 of 14 were some important activities started in the project that are likely to be sustained, in part because the greater part of the work which required the most resources, were already implemented. These relate to improvements made with regard to the education programs for primary education and lower secondary education in general, and the curricula in particular. The curricula for both levels of education were modified; in the case of primary education, the new curriculum is already in use. The curriculum for lower secondary education will be adopted next school year; impact evaluations of the curricula at both levels are planned for the next two years. These activities require minimal resources to implement, but could have a positive impact in improving the quality of student learning outcomes. 20. The sustainability of project interventions aimed at improving the coordination and development of rational linkages between vocational training and labor market demands is unlikely. The socio-economic uncertainties existing in the country, structural weaknesses in the vocational training and employment sectors, poor oversight by the government entities involved in the management of vocational training and the labor market, and weak technical capacity, were not thoroughly evaluated. Ambiguities existed between the objectives of the vocational training component and the development of project interventions. Thus, efforts to rationalize vocational training with labor market demands did not succeed. E. BANK'S PERFORMANCE 21. Except for the vocational training component, identification and preparation of the project was generally satisfactory. The objectives were consistent with the Government's medium-term strategy in the education sector and with the Bank's Country Assistance Strategy in Djibouti. The project was prepared by a team of World Bank and UNESCO staff based on the findings of UNESCO Education Sector Report of June, 1987. Discussions between UNESCO/Bank staff and the Government of Djibouti regarding this report led to a common basic understanding of key issues facing the education sector and an agreement on measures and instruments to: (a) improve sector-cost efficiency; and (b) improve access to, and relevance and quality of education. While there was also a basic understanding of key issues relating to the technical training and employment sectors, there appears to be a disconnect between the project objective and the design and preparation of project interventions. 22. Bank performance during project appraisal was less satisfactory. The Bank collaborated with the Government and other donors in this phase but did not pay sufficient attention to the institutional aspects of the project. In some instances, the Bank was not thorough in evaluating the adequacy and, in some cases, the suitability of project interventions in light of prevailing country conditions. While poor access to education was and continues to be one of the major constraints facing the education sector, the Bank did not sufficiently evaluate the adequacy of project support, both in terms of meeting the overall demand of a population with a 3% (natural) annual growth rate, while also increasing the gross enrollment rate in primary education, and the likelihood of sustaining project interventions. The Bank was not thorough in evaluating the feasibility of coordinating and developing vocational training in line with labor market demands. The structural weaknesses that characterized the sector were not fully addressed; ambiguities existed with regard to the component's objective and the design and preparation of project Part I: Implementation Assessment Pa2e II of 14 interventions. Mechanisms for monitoring and evaluating the execution of project activities and project outcomes, both in terms of educational quality and resource use and allocation, were not adequately addressed. While not required, the provision of key indicators would have been useful in evaluating the overall performance of the project vis-i-vis the project's overall development objectives. Inadequate attention was also given to the timing and sequencing of training, thus contributing to delays in project execution. 23. Supervision was weak. Time spent in the field was limited, thereby reducing the scope for supervising the overall progress of the project. Over the past five years, only six supervisions were carried out, each involving an average of less than one week in the country. In some instances, the minimal time spent in the field allowed for a build up of issues that became difficult to resolve, and neglected the appropriate monitoring of the more qualitative aspects of project interventions. Several IDA missions could not get timely agreements on specific deadlines for completing outstanding key project activities. An example of this concerns the inefficient management of the Special Account, which was one of the causes of project implementation delays, and the untimely provision of counterpart funds, which affected payments to contractors and also delayed execution of works. In some instances, IDA missions were not able to effectively agree with the Borrower on best means of remedying non-compliance with some legal covenants. The progress and impact of support being provided by the cofinanciers were not always adequately monitored. An example is the provision of long term technical assistance which did not provide for a transfer of knowledge and skills to nationals in some areas of educational planning. 24. The problems encountered during project implementation were addressed in Bank supervision reports, but the nature and causes contributing to such shortcomings were not always clearly indicated. Supervision mission reports were also not thorough in addressing progress achieved with regard to the more qualitative and institutional objectives of the project, or the progress achieved in executing project activities cofinanced by other agencies. Insufficient attention was paid to how the project was performing with regard to achieving its overall development objectives. F. BORROWER'S PERFORMANCE 25. On balance, Borrower's performance during the preparation stage was satisfactory. The Borrower, however, could have developed a more functional and realistic approach to coordinating manpower training with labor market requirements. Borrower performance during project implementation was not entirely satisfactory. Heavily centralized and cumbersome administrative systems, lack of counterpart funds, and insufficient experience of project staff in work planning and procurement procedures caused delays in implementation. Intra-governmental coordination between the three implementing entities was weak. The government did not take appropriate measures to correct these problems in a timely manner. Deficient contract awarding procedures allowed multiple constructions to be poorly executed by the same unsatisfactory contractor, and without an appropriate control of works, as experience would suggest. The Borrower did not always take the initiative to follow-up and monitor the progress of project activities cofinanced by other organizations. Proper mechanisms to improve coordination and Part 1: Implementation Assessment Page 12 of 14 dissemination of information between the implementing agencies and the cofinancing agencies were not developed. The allocation, use, and performance of technical assistance was not always thoroughly evaluated. Notwithstanding all the above mentioned shortcomings, it should be recognized that the project was completed with a minimum time overrun of seven months. The Implementation Unit (BEPE) was initially understaffed and inexperienced with regard to World Bank guidelines and procedures, particularly as it related to disbursement and procurement. The Unit was later strengthened with competent and highly motivated staff and project experienced greater efficiency in managing and executing project activities. G. ASSESSMENT OF OUTCOME 26. Overall, the outcome of the Manpower and Education Development Project can be considered partially satisfactory. First, access to primary education, although limited to the project sites, increased. The four new schools, by operating in double shift, ensure an increased access of 4,500 places in primary education. Enrollment capacity in Balbala Lower Secondary School also increased by 1,200 places. Second, while it is too early to determine whether the overall quality of education has improved, the project has implemented important measures in support of meeting this objective. The creation of CRIPEN, and the assistance provided to it, has facilitated the modification of the curricula for primary and first cycle secondary education, including teacher training, taking into account the conditions of the country, and of the students and their socio-cultural background. Mechanisms for evaluating student performance were also developed. Professional training was provided to primary school teachers to increase their effectiveness in the classroom. To strengthen the overall management of primary schools, and the frequency and quality of teacher supervision in rural areas, primary education supervisors were trained in the areas of school management, organization, and planning; in-service training was also provided to pedagogical counselors, head masters, and school inspectors. Third, the project has made efforts to improve educational planning and management. The study on the cost and financing of education, and the three-pronged study on the performance of the education system, which included an evaluation of the labor market and an action program, were successfully completed. These studies are currently being evaluated with a view to adopting the recommendations to strengthen educational planning and management. Fourth, the professional capacity of several units (CRIPEN, SPE, SNE, and the Project Unit) has been strengthened through training of staff, additional staff were also recruited for most of these units to assist them in their work. Fifth, the study to guide the reorganization of the Directorate of Employment and Vocational Training and the National Training Center for Adults was successfully completed; the action plan and the proposals contained in the study were adopted by the Ministry of Labor and the CNFA is restructuring its training programs to better respond to the demands for employment (for example in the areas of office support services). Finally, the Project had some success in rationalizing educational resources through the implementation of several cost-reduction measures (para. 12). 27. The project outcomes, highlighted above, constitute important elements to fostering Djibouti's development, in general, and to improving the performance of the education system, in particular. There were some shortcomings, however, that undermined the extent to which development objectives could have been fully realized. First, the level of project support aimed at Part I: Implementation Assessment Page 13 of 14 increasing access was not adequate to meet the demands of a population growing at an annual (natural) rate of 3% or to increase the overall gross enrollment rate in primary education. While access did increase in the project areas, the support provided by the project has in fact merely helped to prevent the overall low gross enrollment rate from declining. Second, efforts to develop manpower training in line with labor market demands did not succeed. The rationale for and feasibility of project interventions in light of the structural weaknesses in the training and employment sector and country conditions were not thoroughly analyzed. Although an employment observatory with a data base system was developed, the observatory's capability for statistical analysis remains weak. A study that was deemed crucial to the strengthening of National Employment Service was left incomplete by the expert recruited for this assignment. The project did not succeed in rationalizing vocational training through the creation of a National Council for Training and Employment (CNFE), which was intended to coordinate supply and demand of manpower training and allocate funds and resources between the various training centers as appropriate. While the Council was created by decree, staff were never appointed to its Secretariat which was to assist the Council in its work. Therefore, the institutional capacity for coordinating and developing manpower training in line with labor market requirements remains weak H. FUTURE OPERATIONS 28. The government has provided a list of activities aimed at maximizing project benefits, along the lines of its strategy for increased access to education and for improving the quality of education. Such activities include: (a) reduction of gender inequalities in the access to education; (b) ongoing curriculum review; (c) evaluation of the impact of the new curricula; (d) strengthening of teacher training; (e) strengthening of educational planning capability; and (f) school maintenance. 29. The Association plans to monitor the Project's performance, in particular, in the increases in gross enrollment rate in primary education, the adoption of the new curricula for first cycle secondary education, and the evaluation of pedagogical achievements. The following key indicators for project monitoring will be adopted. (a) Enrollment ratios to monitor increased access in primary schools; (b) Adoption of new curricula in first cycle secondary education, starting school year 1996-97; (c) Impact of new curricula for primary and first cycle secondary education. Review the outcome of the new curricula evaluation operated by the Ministry of National Education; (d) Quality and effectiveness of teaching in primary and first cycle secondary education. Review the outcomes of the new evaluation methods for pedagogical achievement recently introduced in the system; and Part I: Implementation Assessment Page 14 of 14 (e) School maintenance, with adequate allocation of resources and greater participation of local communities. 30. The ICR mission discussed the overall plan for monitoring future operations with the DGEN. The Association will require periodic reports to monitor the above indicators. I. LESSONS LEARNED 31. Lessons learned from the project are: (a) Planning, coordination and monitoring mechanisms should be well developed prior to project-start up, especially when projects have to be implemented by several agencies. Key performance indicators, both qualitative and quantitative, should be clearly defined in the SAR to permit the efficient monitoring of project activities. (b) Sequencing core training and project execution is essential for capacity building and successful project implementation. (c) Institutional strengthening occurs only with strong government commitment and firm political decision making. These should be obtained early in the project preparation phase, and closely monitored during implementation. (d) Stakeholder participation in decision-making is essential for fostering ownership of project activities and outcomes. (e) Allocation of Bank resources for supervision should consider project scope and complexity. 15 Part II Table 1 Djibouti Manpower and Education Development Project Table 1: Summary of Assessments -Substantial Partial Negligible Not applicable A. Achievement of objectives macro policies x sector policies x financial objectives x institutional development x physical objective x poverty reduction x gender issues x other social objectives x evironmatal objectives x public sector management x private sector developmat x Likely Unlikely Uncertain B. Project sustainability x Highly Highly satisfactory Satisfactory Deficient unsatisfactory C. Bank performance identification x preparation assistance x appraisal x supervision x D. Borrower performance preparation x implementation x covenant compliance x operation x E. Assessment of outcome x 16 Part II Table 2 & 3 Djibouti Manpower and Education Development Project Table 2: Related Bank Credits Year of Credit Purpose Approval Status First Education The objectives of the project were: (a) to 1985 Closed on (Cr. 1543-DJI), expand and improve primary education in June, 1991 US$ 5.0 million underprivileged urban and rural areas; and (ii) to improve the management of the education system through educational planning. Table 3: Project Timetable Steps in Project Cycle Date Planned Date Actual Identification (Executive Project Summary) n/a April 7, 1987 Preparation February 15, 1988 Appraisal May 20, 1989 May 26, 1989 Negotiations October 30, 1989 October 30, 1989 Board Presentation January 16, 1990 December 21, 1989 Signing February 6, 1990 February 6, 1990 Effectiveness April 30, 1990 July 10, 1990 Mid-Term Review (if applicable) n/a n/a Project Completion September 30, 1994 October 31, 1995 Closing March 31, 1995 October 31, 1995 17 Part II Table 4 Djibouti Manpower and Education Development Project Table 4: Credit Disbursements, Estimated and Actual Fiscal Year/ SAR Estimates Actual Actual Cum. Quarter Quarterly Cumulative Quarterly Cumulative as % of (US$ millions) (USS millions) Total Credit FY90 Q4 0.00 0.00 0.0 0.0 0% FY91 Q1 0.30 0.30 0.30 0.30 5% Q2 0.20 0.50 0.00 0.30 5% Q3 0.20 0.70 0.02 0.32 5% Q4 0.20 0.90 0.15 0.47 7% FY92 Q1 0.30 1.20 0.05 0.52 8% Q2 0.30 1.50 0.17 0.69 11% Q3 0.30 1.80 0.38 1.07 16% Q4 0.40 2.20 0.31 1.38 21% FY93 Q1 0.40 2.60 0.43 1.81 28% Q2 0.40 3.00 0.47 2.28 35% Q3 0.40 3.40 0.36 2.64 41% Q4 0.40 3.80 0.30 2.94 45% FY94 Q1 0.40 4.20 0.68 3.62 55% Q2 0.40 4.60 0.35 3.97 61% Q3 0.30 4.90 0.07 4.04 62% Q4 0.30 5.20 0.07 4.11 63% FY95 Q1 0.30 5.50 0.11 4.22 65% Q2 0.20 5.70 0.17 4.39 68% Q3 0.12 5.82 0.21 4.60 71% Q4 1.09 5.69 88% FY96 Q1 0.37 6.06 93% Q2 0.17 6.23 96% Q3 0.32 6.55 98% 18 Part H Table 5 DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT Table 5: Key Indicators for Project Implementation Key Implementation Indicators In SAR Estimated Actual I. VOCATIONAL TRAINING National Employment Service (SNE) (A) Number of additional staff recruited. * Recruit two additional staff holding at * Two additional staff recruited and in least the equivalent of a junior college service. 100% of target. diploma. (B) Number of technical expert to assist in * Recruit technical expert in employment 0 Technical Expert recruited for two years the development of data base on and analysis for a period of 3 years to under EDF financing and 9 months under employment. carry out a 3-phase study program. IDA financing. Phase 1 of program to develop data base completed. Start-up of activities for Phases 2 and 3 substantially delayed. 70% of target. * Provide 10 months of consultant services * Three studies to assist the reorganization for the following studies: (i) study of the and strengthening of SNE, CNFA, and the MTPS Vocational Training Center; (ii) Directorate of Labor and Training carried restructuring of Directorate of Training out and analyzed. Analysis ofnon-formal and Employment; and (iii) analysis of education not carried out. 80% of target. non-formal education. (C) Number of months for training abroad. e Provide 20 months of training in Training of 2 staff abroad to be financed employment statistics and administration by EDF not carried out due to price to 2 staff in Control Section of SNE. increase in cost of training. 0% of target. (D) Number of study tours. * Provide 6 months of study tours. * Study tours completed by 3 staff who are in service. 100% of target. National Council for Training and Employment (CNFE) (A) Establish coordinating body for * Establish National Council for Training * Council was established but staff was planning and policy making. and Employment. never appointed to its Secretariat who was to assist the Council in its work. (B) Number additional staff recruited. * Staff Secretariat of CNFE with at least * Proposal for the nomination of 1 staff two additional staff with required prepared but not acted upon. 0/6 of target. qualifications. (C) Training of CNFE Staff * Provide 9 months of training abroad in * No progress as CNFE 's Secretariat was the analysis of employment, qualification never staffed. 0% of target. and training. (D) Equip and furnish Office of CNFE * Provide computer equipment and office * All goods purchased but not in use by Secretariat. furniture. CNFE since CNFE was never staffed. As no performance indicators were provided in the Staff Appraisal Report (SAR) or the President's Report, these have been assembled from targets mentioned in various parts of the SAR. 19 Part H Table 5 Key Implementation Indicators In SAR Estimated Actual H. ACCESS TO PRIMARY EDUCATION (A) Number of primary schools built, * Build 4 primary schools (45 classrooms). * 4 primary schools constructed and in equipped, furnished, and in use. use with double-shift operation. 100% of target. (B) Number of textbooks purchased and * Purchase and distribute 7,500 textbooks * 7,500 textbooks each in Math and distributed. in Math, 7,500 textbooks in Science, and Science, and 300 dictionaries in French 300 dictionaries in French and Arabic. and Arabic purchased and distributed to students. 100% of target. Ill. QUALITY OF EDUCATION (A) Number of additional staff assigned to Assign two educators by December 31, * Five educators assigned to CRIPEN. CRIPEN. 1990, and three more educators by 100% of target. December 31, 1991. (B) Build new office of CRIPEN. * Build new offices of CRIPEN. * Construction of new CRIPEN offices completed. 100% of target. (C) Number of printshop space extended. * Expand space of existing CRIPEN * Printshop space expanded and in use. printshop. 100% of target. (D) Workprogram of CRIPEN. Review with IDA annual work program of * CRIPEN workprogram reviewed CRIPEN by May 31 of each year. annually. 100% of target. (E) Number of regional primary education * Build two regional primary education * Two regional primary education inspectorates built, equipped and in use. inspectorates, and 4 quarters for inspectorates built. Dikhil Inspectorate administration staff in Dikhil and in use; Tadjourah Inspectorate not yet Tadjourah. equipped and in use. 80% of target. (F) Number of equipment, furniture and * Provide computer hardware/software, * Goods delivered and in use. vehicles to CRIPEN. furniture, printing materials and 2 vehicles to CRIPEN. (G) Number of months provided for training * Provide 20 months of training in * 20 months of training provided to 2 regional primary education inspectors. supervision theory and practice to two inspectors. 100% of target. regional primary education inspectors. (H) Number of specialist services in * Provide 60 months of specialist services 0 56 months of specialist services used. curriculum development, measurement and for curriculum development, and Measurement and evaluation of quality evaluation. evaluation and measurement for primary of primary (CMl/CM2) and first-cycle and first-cycle secondary education and secondary (4eme/3eme) education revision of the curriculum for teacher done. New curriculum for primary training education in use. New curriculum for first cycle of secondary education prepared but not yet in use. 60% of target. 20 Part H Table 5 Key Implementation Indicators in SAR Estimated Actual (I) Evaluation of educational programs at * Provide 5 months of consultant 0 All evaluations completed. 25 primary the primary and lower secondary levels. services for the evaluation of (a) education supervisors trained and have primary teachers pre-service training, been provided practical guides for and (b) in-service teacher training, management and administration. In- inspectors, pedagogical counselors and service training provided to 30 headmasters; and (c) training of 20 inspectors, pedagogical counselors and primary education supervisors, education supervisors. 100% of target. (J) Number of staff trained abroad and in 9 Provide 40 months of staff training 2 staff trained in measurement and service at CRIPEN. abroad in (a) measurement and evaluation and in design of evaluation; (b) didactic of French instructional material and are in language; (c) editing; and (d) design of service. I staff trained in didactic of instructional material French language but not in service. 1 staff sent for training abroad in editing never returned. 60% of target. (K) Production of educational audio-visual * Produce educational radio * 150 radio transmission, 4 videos, 15 and video materials. transmissions and videos, bulletins, bulletins of MEN, 6 thematic reviews thematic reviews. "Etude/CRIPEN", 10 bulletins for professors teaching French. 100% of target. IV. EDUCATIONAL PLANNING AND MANAGEMENT (A) Number of additional staff assigned to * Assign two qualified staff to SPE. * 2 staff recruited at the beginning but CNFE. only I staff currently in service. Since 9/95, however, 4 staff were recruited to reinforce SPE. 60% of target. (B) Execution of designated program of * Provide 18 months of specialist * 24.5 months of specialist services were specialist services. services in education planning and used to carry out some of the planned management. studies. The findings of studies completed are being evaluated, with a view to adopting recommendations to strengthen educational planning and management. One expert left before completing his work. 50% of target. (C) Execution of program of studies to * Provide 6 months of consultant * 4 months of consultant services were improve education planning and services for: (a) organization and used to complete only two studies - management. management study of MEN, (b) school cost/financing study and school mapping for primary and secondary mapping; the former is being evaluated education; (c) costs and financing of and the latter of which is of poor education; (d) tracer study of the quality. 40% of target. Ministry's vocational training graduates, (e) administration (budget and financing, management of personnel and general administration). 21 Part H Table 5 Key mplementatin Inicators in SAR Estimated Actual (D) Train staff in administration of * Provide 38 months for training in * 15 months used to train 6 staff who are education. administration of education (budget and currently in service in the administration financing, management of personnel and of education. 40% of target. general administration). (E) Equipment and furniture delivered and * Provide office equipment and furniture to * Goods delivered and in use. in use. SPE/DGEN, including 1 vehicle. V. PROJECT MANAGEMENT (A) Effective management and project Provide support for efficient operation of the implementation BEPE -Recruitment of additional staff. * Recruit 2 chauffeurs and I accountant for * 1 chauffeur recruited and 1 accountant 1 year each and 5 years, respectively. recruited and in service. 80% of target. (B) Monitor progress in executing project * Prepare and send to IDA bi-annual * Semi-annual reports regularly prepared activities. progress reports on the overall status of and submitted to IDA. 100% of target. project implementation. (C) Computerized accounting system. * Provide specialist services to develop * Accounting system computerized. 100% computerized accounting system. of target. (D) Audits of Project Accounts * Provide specialist services to conduct * Annual audits current. Audit for Jan.- annual audits of the project accounts. September 1995 completed and submitted to IDA. 100% of target. (E) Equipment and furniture delivered and * Provide office equipment and furniture, * Goods delivered and in use. in use. including 1 vehicle to BEPE. (F) Number of BEPE staff trained. * Provide training to BEPE staff in project * Accountant and Assistant Coordinator implementation. trained in World Bank disbursements and procurement guidelines and procedures. 100% of target. VL STUDIES AND PREPARATION OF FUTURE INVESTMENTS (A) Further sector studies/preparation of * Provide flnds for further sector studies to * Studies carried out on: (a) the overall future investments. be agreed with IDA and for the possible performance of the education system preparation of future investments, which includes an analysis of vocational training and the labor market, and an operational plan, and (b) five- year investment plan for 1994-1999. 100% of target. 22 Part I Table 5 Ke Implementation Indicators Ja SAR Estimated Actual VII. COST REDUCTION MEASURES Increase cost-efficiency while tying * Replace current teacher trainees pre- * Measure adopted, although it is not evident sectoral investments to the Government's salary by an indemnity at least one whether economies gained from the measure capacity to meet the incremental third less than pre-salary. are used to be benefit the education sector. recurrent costs. * Recruit at least 90% of primary school teachers required during the project year at the level of assistant teachers (instituteur adjoint). * Cancel, effective the following school year, new fellowships abroad for upper secondary general education. * Reduce support grants for secondary * Program prepared but not yet adopted. education by 60 percent, while retaining criteria for eligibility designed to increase female enrollment in secondary education * Introduce new criteria for rewarding * Criteria developed but not adopted. fellowships for higher education, while providing incentives for the higher education of females and freezing the related budget. VII. MODIFIED INDICATORS Lower Secondary School of Balbala 2 * Build 3 staff houses. * 3 staff houses built. 100% of target. * Build fences and install drainage * Fences built and drainage system installed. system in school. 100% of target. * Provide 8,000 textbooks for 1,200 * Textbooks purchased and re being distributed students in secondary education to students. 100% of target. (6eme-3eme levels). * Provide office furniture, computer * Goods provided, installed and in use. 100% of hardware/software, and other office target. equipment. 1 2 Support provided to Balbala Lower Secondary School financed from remaining IDA uncommitted funds. 23 Part II Table 6 DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT Table 6: Key Indicators for Future Project Operation Project Impact to be Issues Acdons to be taken and Maintained monitored (a) Increase access to The construction of 4 primary Increase access to primary primary education schools (45 classrooms) provide schools at a ratio of 50 for an enrollment capacity of students per class while 4,500 students with a double- continuing operations in shift operation. While student double shift. Ensure enrollment has increased, adequate upkeep and classrooms are not yet utilized at maintenance of school fiIi capacity. facilities, while encouraging greater participation of local communities. (b) Adopt revised Curricula for secondary Test new curricula and curricula for secondary education revised, but not yet adopt it for 1996-97 school education adopted. year. (c) Evaluate qualitative Curricula for primary and first Evaluate impact of new impact of educational cycle secondary education have curricula for primary programs been revised. The impact of the education starting in 1996- new curricula on student learning 97 school year. Evaluate has not yet been evaluated. impact of new curricula for first cycle lower secondary education starting in 1997- 98 school year. New teaching materials have Evaluate quality and been developed but its impact on effectiveness of teaching in the quality of teaching has not primary and first cycle yet been evaluated. secondary education. 24 Part II Table 7 DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT Table 7: Studies Included in Project Studies Authors Purpose of Study Status Impact of Study Studies Carried out under the Manpower and Education Development Project 1. Study on Ministry of Labor BC.E.O.M. Studies 1, 2, and 3 mainly geared to the Completed Studies 1, 2, and 3 wre to support the and Welfare Vocational Training redefinition of MTPS's mission in relation to (No. 1) planned National Council for Training and Center the rehabilitation and transformation of the Employment in redirecting vocational Vocational Training Center and the training streams and expansion. Impact of 2. Analysis of non-formal restructuring of the Directorate of Training- Not done studies are negligible since the CNFE never education Employment within MTPS. (No. 2) became fully operational. 3. Restructuringofthe BCEOM Completed directorate of training and (No. 3) employment 4. Curriculum Development IBF Adapt curriculum to the realities of the country Completed Curriculum revised to improve student (Primary and Lower Secondary and improve quality and relevance of learning achievement. Impact evaluation Education) education. of new curricula for primary and first cycle secondary education to be carried out starting 1996-97 school year and 1997-98 school year, respectively.. 5. Evaluation of teachers' pre- IBF Strengthen teacher training and teaching Completed. New guidelines developed for and in-service training. effectiveness strengthening in-service teacher training. 25 Part H Table 7 Studies Authors Purpose of Study Status Impact of Study Studies Carried out under the Manpower and Education Development Project (continued) 6. School Mapping S. Coussement Assist the process of planning school Completed Study is of poor quality and therefore infrastructure development. cannot be utilized as a planning instrument. 7. Costs and Financing P. GOMIS Strengthen educational planning and Completed Findings and recommendations of study to management, including resource use and be used as an operational tool for allocation. improving educational planning and management. 8. Organization and - Strengthen educational planning and Not done. Management of MEN, including management, and education administration. administration (budget and financing, management of personnel, and general administration 9. Studies for future investment * Evaluation of Education B.C.E.O.M. Assist in planning and developing future Completed Findings and recommendations of studies System, Evaluation of Labor interventions in the education sector. to aid the preparation of future Market Opportunities, and interventions in the education sector. Action Plan * Five Year Investment Plan for period 1994-2000 S. Coussement Completed 26 Part H Tables 8 & 9 DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT Table 3: Project Costs (USS thousands) Actual Local Freg Total lacal Foreig Total Cats P ecaomp.a. cOM Casts Cus Csub Costs 1. Civil Works 2,099.0 1,400.0 3,499.0 4,647.1 0.0 4,647.1 2. Equipmu t, Fmiture, Vdiicles and Textbooks 60.0 843.0 903.0 287.7 823.3 1,111.0 3. Prafesional and Specialist Services, Training 0.0 1,831.0 1,831.0 20.2 1,815.4 1,835,6 4. Incramental Opesating Costs 294.0 125.0 419.0 197.2 - 197.2 5. Studies and Future Project Preparation 0.0 75.0 75.0 - 214.5 214.5 6. Total Baseline Cost 2,453.0 4,275.0 6,727.0 5,152.2 2,853.2 8,005.4 Physical Contingmcies 215.0 229.0 444.0 - - - Price Contingencies 132.0 223.0 355.0 - Tota Project Costs 2o0e 4726.0 7. @ 152.2 2,853.2 05.4 Table 9: Project Financing (USS thousands) SAR Esthmates Actual Expeuditure Categary Gor9t IDA FED UNDP Total Gov't. IDA FED IJNDP Total 1 Civil Works 4750 2,7000 - - 3,175.0 665.1 3,982.0 - 4,647.1 2. Fumiture, Equipment, Vdicles and Textbooks - 750.0 48.0 30.0 828.0 86.3 976.3 42.7 5.7 1,111.0 3. Professional and Specialist Services and Training - 960.0 352.0 378.0 1,690.0 - 1,302.9 241.0 291.7 1,835.6 Abroad 4. Increamntal Operating Costs 217.0 140.0 - 21.0 378.0 117.5 78.3 - 1.4 197.2 5. Studies and Future Project Preiaration - 70.0 - - 70.0 - 214.5 - - 214.5 6. Unallocated 180.0 1,205.0 - - 1,385.0 - TOTAL PRORCT CO I 872 5,25.0 401LO 429. 7,526.0 68.9 6,554.0 283.7 298.8 18,005.4 Total amount disbursed by FED was Ecu 220,467. US$ equivalent based on current exchange rate of Ecu 1.287 = US$ 1. 27 Part H Table 10 DJBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT Table 10: Status of Legal Covenants BcA ea.e. Dr cine.net c0wan.t Prset oifinal Date Actual Date Comments dams(4s)Stalt" Atticle 3, The borrowr shall staffthe Secretariat f its National 4,6 NC September 30, 1990 - Council created by decree but staff section 3.03 Council for Training amd FEmployment with at least was not appointed to its Secreariat. two additional staff members. (Proposal for the nomination of I staff prepared, but not acted upon. Atticle 3, The borrower shall nasure that at least 90% of 5,6 C n/a - Recruitment for teacher training section 3.04 primary school teachers are recruited at the level of done at this level is being monitored assistant teacher (instieur adjoint) yearly. Article 3, The Boriwer shall change views with the 4 C May 31 of each yew - section 3.06 Association each year on the proposed work program of CRIPEN (Researd Cada) Article 3, Replace pro-salaries for teacher trainees wih 5 C March 31, 1991 February 14,1990 Arrete no. 90-0146 taken on 2/14/90 section 3.08(a) indemaies at least one third less than such pe- applied for school year 1990-91 and salaries. thereafter. Article 3, Cancel any new fellowships abroad for general 5 C December 31, 1990 1991/92 Done since 1991/92 academic year, sedtion 3.08(b) secondary education. with the exception of Technology section which doesn't exist in Djibouti Article 3, Reduce by 60% the number of grants in support of 5 CP January 31, 1991 - Program prepared but not yet section 3.08(c) secondary education beyond January 31, 1991, while adopted. wetainang ciwteris to increase female emelment in Secondary edcai 28 Part H Table 10 DCA Reference Description of Covenant Covenant Prasent Original Date Actual Date Comments I _class(es) Status Article 3, Complete and make effective the new criteria for 6 CP January 31, 1991 Criteria prepared, but not yet section 3.08(d) awarding Higher Education Fellowships and approved. providing incentives for female participation at this level of education while freezing related budget. Article 3, The borrower shall furnish to IDA semi-annual 2,3 C June 30 and Semi-annual reports regularly section 3.09 reports on the status of the Project and related December 31 submitted to IDA. expenditures of each year Article 4, The Borrower shall furnish to the Association not 1 C n/a n/a Annual audits are current. Audit section 4.01(b) later than six months after the end of each fiscal for January - September 1995 year a certified copy of the audit reported prepared submitted to IDA in October 1995. by independent auditors acceptable to the Association. Article 4, For all expenditures with respect to which 1 C n/a n/a The Project Unit maintains copies section 4.01(c) withdrawals from the Credit Account are made on of all SOEs as well as opinions of the basis of statements of expenditure, the the auditors on the SOEs. Borrower shall: (i) maintain separate records and accounts reflecting such expenditures, retain them at least one year after the completion of the audit for the fiscal year, and include in the audit reports opinion by the auditors as to whether the proceeds of the credit were used for the purposes for which they were provided. Article 4, By November 15 in each year, the Borrower was to 4 C November 15 - section 4.02 exchange views with the Association on the of each year proposed investments and recurrent expenditure budgets for the education sector for the coming fiscal year. Schedule 4, Assign two qualified and experienced staff to the 4 NC September 30, 1990 - Staff not appointed to CNFE Part A Secretariat of National Council for Training and Secretariat. Employment. 29 Part H Table 10 DCA Reference Description of Covenant Covenant Present Or al Date Actual Date Comments I I class(es) IStatus Schedule 4, Research Center (CRIPEN): Part B (i) Assign two educators. 4 C December 31, 1990 - Educators assigned and in service. (ii) Assign three more educators. 4 C December 31, 1991 - Educators assigned and in service. (iii) Complete adaptation of the primary school 6 CD June 30, 1991 December 1993 Delays due to slow progress with curriculum. technical assistance. New curricula in use. (iv) Complete revisions of the curriculum for 6 C December 31, 1991 December 1993 Completed and in use. teacher training (v) Complete adaptation of the first-cycle 6 CD May 1995 New curricula revised but not yet secondary school curriculum. tested. Schedule 4, Educational Planning Service: Past C (i) Assign qualified staff member. 4 C December 31, 1991 - Staff assigned and in service. (ii) Complete organizational study of the 4,6 NC June 30, 1991 - Study not completed. Ministry of Education. (iii) Complete study of school mapping at 6 CD June 30, 1992 April, 1993 School mapping completed but primary and secondary levels. quality is poor. New resources required to repeat study. (iv) Complete tracer study of vocational 6 NC June 30, 1993 Study not carried out. graduates. (v) Complete follow-up study on costs and 5,6 C December 31, 1993. June 20, 1993 Study completed and evaluation in financing in the education sector. progress. Covenant Type: 1 =Accints/Audits; 2 = Mlagemant aspet of the project of execating agmcy 3= MNitwing, review, ad repcting 4 = Projec miplanmtatim; 5= sctcral r caossedwal budgdary or other resource allocatim; 6 = Sedcral or cross-ndoral policylintitutimnl adiam. Present Status: C = camplied with; CD = complied with afRer delays CP = complia with partially; NC = nt conplied with. 30 Part H Table 11 DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT TABLE 11: COMPLIANCE WITH OPERATIONAL MANUAL STATEMENTS Statement Number Comments and Title OD 13.05 (Para. 4) Resources allocated for the supervision of the Manpower and Education Project Supervision Development Project were not commensurate with the nature and complexity of the project and with the borrower's capabilities and needs. (Para. 5). Implementing agencies were not fully familiarized with Bank procedures, especially procurement and disbursements, prior to project start-up. (Para. 11) Supervision missions did not adequately address progress in all major aspects of the project. The performance of implementing agencies in executing key activities aimed at strengthening institutional capacity was not adequately monitored and followed-up. (Para. 30). In some cases, supervision missions did not thoroughly monitor borrower's compliance with legal agreements. The causes and the best means of remedying non- compliance with some legal covenants were not effectively discussed and agreed upon between the borrower and the Bank. (Para. 39). Review and reporting on (long-term) consultants' performance, both during supervision missions and after completion of the consultants' assignments were deficient. 31 Part H Table 12 DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT Table 12: Bank Resources: Staff Inputs 1/ Stage of Planned Revised Actual Project Cycle Weeks US$ '000 Weeks USS'000 Weeks USS'000 Preparation to Appraisal N/P N/P N/P N/P 56.3 168.9 Appraisal N/P N/P N/P N/P 12.7 38.1 Negotiations through Board N/P N/P N/P N/P 3.6 10.8 Approval Board Approval to N/P N/P N/P N/P 5.6 16.8 Credit Effectiveness Supervision 46.1 141.5 N/P N/P 30.0 90.0 Completion 13.2 35.9 13.2 35.9 16.5 1/ 49.5 Total Project Costs 59.3 177.4 13.2 35.9 124.7 374.1 NP = not provided. 1/ Estimated. Memo: Assumes an average cost of US$ 3,000 per staff week. 32 Part II Table 13 DJIBOUTI MANPOWER AND EDUCATION DEVELOPMENT PROJECT Table 13: Bank Resources: Missions Performance Ratin! Stage of Parject Number Total of Specialized Implementation Development Types of problems cycle mmlyy of Staff Weeks Skills status O0bjective Identifled Persons Represented * Up to 56.3 n.a. Appraisal * Appraisal to 16.3 n.a. Board * Board to 5.6 Effectiveness * Supervision Oct.-Nov. 1 1.1 Educator 1 1 This is the first mission following Credit effectiveness. No major 1990 problems identified. May, 1 0.4 Educator - - Revisions to bidding and contract awards underway although 1991 progress still need to be made regarding procurement. Capacity needs to be developed with regard to the use of standard Bank bidding documents. Nov-Dec. 2 1.4 Technical 2 2 Construction of both CRIPEN and the Inspectorate of Tadjourah 1992 and halted in Nov. 1991 due to bankruptcy of contractor and security Vocational reasons, respectively. Mission objectives of expert in charge of Training; curricula development not fully carried out. While work to adapt Implementati primary education curriculum is ongoing, delays experienced due on Specialist to slow progress with technical assistance. CNFE Secretariat's office not yet staffed causing delays in the implementation of this sub-component. Special Account (SA) not working properly because it is not maintained in a commercial bank. Disbursements below estimated schedule despite expenditures being ahead of schedule. 33 Part H Table 13 Table 13: Bank Resources: Missions Performance Rating Stage of Project Number Total Staff Specialized Implementation Development Types of problems Cycle mm/yy of Weeks Skills Status Objective identified Persons in Field Represented Nov. 1993 1 1.0 Technical and 2 2 Restructuring of SNE completed but not yet fully staffed. Study Vocational to redefine role of Vocational Training Center of the Ministry of Training Labor and Welfare not yet done. Resumption of works for Tadjourah Inspectorate is pending improvements in security situation. UNDP co-financing (Part D) reduced due to shortage of funds in this organization. No action has been taken by Govt. to transfer SA in a commercial Bank. Warning about a possible cancellation of existing SA provided to Govt. by Bank. March, 1 0.7 Technical and 2 2 SNE 80% staffed. Study to redefme role of Vocational Training 1994 Vocational Center not done. No progress made with CNFE component. SA Training functioning with unacceptable delays. In lieu of canceling remaining Credit balance, Govt. proposes to use remaining Credit funds to complete construction/equipping of the Balbala Lower Secondary School, which was originally built and equipped partially under a Japanese Grant. Nov. 1994 1 0.7 Technical and S S SNE is still not fully staffed. Study to redefme role of Vocational Vocational Training Center included in the ongoing Education System Training Evaluation. It is expected that Govt. will not take appropriate measures to make CNFE fully operational before the closing date. Tracer Study of vocational training graduates not done. Subsequent to the November 1994 mission, closing date was extended twice to permit the execution of works delayed by the severe flood in Djibouti-City and minor problems with contracting of remaining small works. Completion Oct, 1995 3 6.4 Education - - Specialists, Operations Analyst 34 APPENDIX A Page 1 of 6 DJIBOUTI MANPOWER AND EDUCA TION DEVELOPMENTPROJECT IMPLEMENTA TION COMPLETION REVIEWMISSION AIDE MEMOIRE OCTOBER 2-18, 1995 1. Une mission de l'IDA composée de Mme. Marilou Bradley (chargée d'opération), M. Mario Cecere (spécialiste en éducation), et Mme. Khadija Khoudari (spécialiste en éducation) a séjourné à Djibouti du 2 au 18 octobre 1995 pour préparer le rapport d'achèvement du projet intitulé «Développement de l'Emploi et de l'Education» (Crédit I.D.A 2080-DJI). Les objectifs de cette mission étaient: (a) l'évaluation globale du niveau de réalisation des objectifs du projet, son impact et ses perspectives, et (b) discussion sur l'évaluation finale du projet faite par l'Emprunteur. 2. La mission remercie, pour leur accueil et leur collaboration, les autorités et l'administration djiboutiennes, les représentants des bailleurs de fonds qu'elle a rencontrés, et en particulier, le Bureau d'Exécution des Projets d'Education (BEPE), les Ministères de l'Education Nationale, du Travail et la Formation Professionnelle. La mission remercie les Chef des Services du Premier et Deuxième Degrés de l'enseignement, le Directeur du CRIPEN ainsi que leurs collaborateurs respectifs pour leur participation aux différentes visites organisées sur le terrain. 3. La mission a eu plusieurs séances de travail sur la contribution du gouvernement au rapport d'achèvement avec le BEPE et les responsables des différents services impliqués dans le projet. La mission a également examiné les divers documents de projet. Elle a eu des discussions avec les autorités et les responsables des Ministères de l'Education Nationale, du Travail et de la Formation Professionnelle et de la Primature ainsi qu'avec le BEPE, les Directions de l'Urbanisme et du Logement (DUL), de la Comptabilité Publique (Trésor), les représentants de la Coopération Française, du Fonds Européen de Développement (EDF) et du Programme des Nations-Unies pour le Développement (PNUD), et les différents entrepreneurs de travaux de constructions. La mission a conduit des visites sur le terrain dans tous les sites des travaux financés par le crédit IDA ainsi que la nouvelle construction du CES de Balbala. 4. Dans le cadre de l'appui aux Ministères de l'Education Nationale et celui du Travail et Formation Professionnelle, le PNUD et le EDF devaient participer au cofinancement des composantes de ce projet. La mission a remarqué que dans certains cas, les informations recueillies en ce qui concerne l'exécution des composantes co-financées sont insuffisantes et ou contradictoires. Ceci a entraîné quelques faiblesses dans la coordination et le suivi des activités prévues par le projet. La mission n'a pas pu faire une évaluation complète des activités co-financées par le EDF étant donné que les informations reçues sont incomplétes. 5. Le présent aide-mémoire résume les principaux points discutés avec les Ministères de l'Education Nationale, du Travail et la Formation Professionnelle et la Primature lors de ces rencontres, ainsi que les actions convenues entre l'IDA et le gouvernement ou recommandées par la mission. Le contenu du présent aide mémoire est sous réserve de l'approbation des autorités de la Banque Mondiale au retour de la mission à Washington. 35 APPENDIX A Page 2 of 6 6. Les conclusions de la mission d'achèvement feront l'objet d'un rapport détaillé, qui sera transmis au gouvernement djiboutien, au PNUD et au EDF pour commentaires, avant sa finalisation. La version finale du rapport d'évaluation de la partie Djiboutienne a été remis a la mission. Un plan opérationnel relatif à la pérennisation des impacts du projet, et aux indicateurs de performance, a été remis à la mission. La mission et le gouvernement doivent se mettre d'accord sur le contenu de ce plan prévisionnel avant la fin de la mission. ACHEVEMENT DU PROJET DE L'EMPLOI ET DE L'EDUCA TION 7. Le projet de l'emploi et de l'éducation avait pour objectifs: (a) d'améliorer la coordination de la formation professionnelle avec la structure du marché de l'emploi; (b) d'accroître l'accès à l'enseignement primaire; (c) d'améliorer la pertinence et la qualité de l'enseignement primaire et secondaire du premier cycle; et (d) d'améliorer les capacités administratives du Ministère de l'Education Nationale tout en réduisant les coûts et dans le cadre d'une affectation plus efficace des ressources. Pour atteindre ces objectifs, le projet devait: (a) améliorer les capacités techniques du Service National de l'Emploi (SNE) et créer un Conseil National de la Formation et de l'Emploi (CNFE) qui aura pour mission de réorienter les filières et l'expansion de la formation professionnelle; (b) créer trois écoles primaires dans la ville de Djibouti et une à Ali Sabieh, avec des classes à double vacation représentant une capacité d'accueil de 4.500 élèves; (c) créer un Centre de Recherche, d'Information et de Production de l'Education Nationale (CRIPEN) et deux inspections régionales ; et (d) renforcer la planification et la gestion de l'éducation par services de spécialistes par la formation. de cadres. 8. Le Crédit 2080 DJI a été clos le 31 mars 1995 sauf pour les travaux de génie civil pour lesquels l'IDA a reporté la date de clôture au 31 octobre 1995. La finition et la réception des derniers travaux prévus dans le cadre du projet doivent avoir lieu au plus tard le 31 octobre 1995. Les déboursements pour les travaux réalisés au plus tard le 31 octobre 1995 doivent intervenir au plus tard le 30 Novembre 1995. Le crédit de 4,6 millions de DTS a été pratiquement déboursé. Le solde du Compte Spécial est estimé à 15.000.000 FD et doit être reverser à l'IDA. L'audit pour la période du ler janvier au 31 septembre 1995 a été achevé et le rapport a été remis à la mission. Le PNUD a décaissé un montant équivalent de 300.000 US$ sur leur contribution globale de 400.000 US $ pour appuyer la planification et l'administration de l'éducation. Le FED a donné aucune information sur l'ensemble de décaissements relatifs aux activités qu'il a cofinancé. 9. D'une façon générale, les objectifs de ce projet ont été partiellement achevés. La mission a constaté les efforts considérables faits par le gouvernement pour augmenter les effectifs des écoles du primaire en assurant une bonne qualité de l'enseignement aussi bien dans le primaire qu'au secondaire. Quatre écoles primaires ont été construites et elles fonctionnent selon le système de la double vacation. Même s'il est tôt d'évaluer l'impact de ce projet du point de vue de la qualité de l'enseignement, on peut dire que le projet a eu des effets positifs sur la méthode d'enseignement et sur l'apprentissage des élèves. Les nouveaux curricula du primaire ainsi que les méthodes d'enseignement des maîtres sont développés et mis en application dans les classes. Les directeurs des écoles ont bénéficié d'une formation à la gestion et l'administration de leurs établissements, les inspecteurs et les conseillers pédagogiques du primaire ont bénéficié également d'une formation de courte durée. La création du CRIPEN ainsi que le renforcement de sa capacité d'évaluation pédagogique ont pu améliorer la qualité de l'enseignement. 36 APPENDIX A Page 3 of 6 10. Le projet a réussi dans l'exécution de quelques activités pour développer une coordination entre la formation professionnelle et le besoin du marché. Une étude portant sur la réorganisation de la Direction du Travail et de la Formation Professionnelle, du SNE, et du Centre Formation Professionnelle des Adultes (CFPA) a été achevée et elle représente un atout opérationnel pour faciliter l'aide à la décision. Un système de base de données sur l'emploi a été établi et il est opérationnel, même si les capacités techniques locales pour une analyse statistique ont besoin d'être améliorées et développées afin d'optimiser l'efficacité du système. il. Les objectifs de la composante « administration et planification de l'éducation » se sont concentrés sur la réalisation d'une étude sur le coût et le financement de l'éducation, et sur une étude portant sur l'évaluation globale du système éducatif composée de trois volets: (i) évaluation des potentialités du marché du travail, (ii) l'analyse du système éducatif, et (iii) un programme d'actions. 12. La mission souhaite exprimer ses inquiétudes au sujet des certaines carences relatives à l'exécution et à l'achèvement des activités de ce projet : A. Coordination de laformation professionnelle. Un élément très important prévu par le projet pour renforcer l'efficacité du SNE était la réalisation d'une étude comprenant 3 étapes et qui devait être menée pendant 3 années successives. L'expert technique recruté pour conduire cet étude a réalisé seulement la première étape du travail, qui est d'une qualité pauvre et non-utilisable par le SNE. L'expert n'a ni collaboré avec les cadres locaux désignés par le SNE ni formés ces derniers. Le système de base des données pour l'emploi est opérationnel mais les capacités techniques pour l'interprétation, l'analyse et l'utilisation des données statistiques, comme instrument de coordination et de suivi, restent faibles. La mission recommande au Ministère du Travail et de la Formation Professionnelle de prendre des mesures pour développer la capacité technique nationale afin de permettre d'une part une utilisation plus efficace de base des données, comme instrument clé de planification, de coordination et d'évaluation de la demande de formation et d'autre part de mettre en relation cette base des données avec les besoins du marché du travail. Le but du projet était aussi d'assister et de rationaliser la formation professionnelle par la création du CNFE et l'appui à son démarrage. Le CNFE devait coordonner les offres et les demandes du marché du travail ainsi que les ressources entre les différents centres de formation. Le CNFE a été crée mais il n'a pas atteint ses objectifs. En conséquence, les capacités institutionnelles pour répertorier et coordonner les différentes ressources nationales en matière de formation et pour assurer le lien entre celles- ci et le marché du travail, restent insuffisantes. B. Accès a l'enseignement primaire. Les quatres écoles primaires construites par le projet sont opérationnelles avec une capacité d'accueil 4500 élevés, mais un grand nombre d'enfants djiboutiens d'âge scolaire ne sont pas scolarisés. La qualité de certaines de ces constructions est insatisfaisante. Quelques écoles sont sans électricité, dans d'autres les toilettes ne sont pas fonctionnelles. La mission recommande que : (a) l'accueil des élèves dans le primaire soit suivi régulièrement; (b) l'entretien et la maintenance soient faits d'une façon systématique en impliquant la participation des communautés, des associations des parents d'élèves, etc.; et (c) des stratégies pour la participation des communautés dans 37 APPENDIX A Page 4 of 6 la maintenance et la gestion du stock des manuels scolaires soient développées. La mission recommande également qu'un système d'évaluation des entrepreneurs soit mis en place pour assurer une meilleure qualité des futures constructions. C. Qualite de l'enseignement. L'efficacité et le rendement du CRIPEN sont limités à cause du retard des travaux de construction des locaux . En plus la qualité des constructions est très pauvres,. On retrouve sur ce chantier l'entrepreneur qui a construit l'école AI Houriya ( qui est déjà dans un mauvais état ) , à qui la Commission Nationale des Marchés Publics a confié la construction des locaux du CRIPEN, sans que cette dernière ne tienne compte des réserves de la D.U.L et du B.E.P.E. Cette remarque s'applique aussi pour le choix de l'entrepreneur de l'école primaire DOGLEY. La construction de l'inspection de Tadjourah et les deux locaux administratives sont en cours d'achèvement. La mission recommande que :(a) la réception des constructions du CRIPEN et de l'inspection de Tadjourah intervienne au plus tard le 31 octobre 1995 et (b) les nouveaux curricula de l'enseignement secondaire du premier cycle soient adoptés et appliqués pour la prochaine année scolaire (1996-97). D. Administration et planification de l'education. Le projet a utilisé 60% de la mise à la disposition l'assistance technique. Des études sur le coût et financement de l'éducation, sur l'évaluation globale du système éducatif comprenant trois volets et sur le plan quinquennal pour la période 1994-1999 sont achevées mais les résultats ne sont pas analysés ni utilisés pour développer les outils opérationnels nécessaires au renforcement de la gestion du secteur de l'éducation. La qualité de l'étude sur la carte scolaire est insuffisante et n'est pas utilisable. En conséquence, une autre étude pour laquelle il faut chercher un autre financement, doit être entreprise. Le suivi socioprofessionnel des diplômés de le formation professionnelle ( Tracer Study ) n'a pas été exécuté. Les ressources affectées par le P.N.U.D à la formation ont été partiellement utilisées. La mission recommande que : (a) les études clés soient analysées et évaluées en vue de les utiliser pour les opérations futures, comme instruments d'amélioration pour la planification et l'administration de l'éducation; et (b) les mesures sur la réduction des coûts et les autres mesures relatives à la gestion de l'éducation conformément à l'accord de crédit de l'IDA soient appliquées. 13. Les autres inquiétudes exprimées par la mission sur l'exécution du projet sont les suivantes: Renforcement de la capacité institutionnelle. La coordination et le suivi par tous les partenaires impliqués dans le projet ont été insuffisants pendant la phase d'exécution du projet. Ceci a eu un impact négatif sur certaines composantes. La mission suggère que dans l'avenir, soit mis en place un mécanisme favorisant un collaboration étroite et transparente de tous les acteurs concernés. La mission a constaté que le deuxième véhicule affecté au BEPE dans la cadre du projet n'est pas réellement utilisé par ce dernier. Rationalisation des dépenses. Plusieurs mesures clés pour la réduction du coût de l'education nationale n'ont pas été adoptées conformément à l'accord de crédit. A l'heure actuelle, il est difficile de confirmer premièrement que des économies soient réalisées et deuxièmement que le Ministère de l'Education Nationale ait bénéficié de ces économies. La mission souhaite que soient transmis à l'IDA 38 APPENDIX A Page 5 of 6 avant le 31 octobre 1995: (a) les informations sur les économies réalisées et leur affectation, et (b) l'état d'avancement des mesures non encore appliquées et relatives à la réduction des coûts de l'éducation, conformément à l'accord de crédit de l'IDA et le calendrier proposé pour leur adoption et application. La mise à la disposition de l'assistance technique et son utilisation. La mission a constaté qu'en général, la mise à la disposition et l'utilisation de l'assistance technique ainsi que la formation des cadres locaux n'ont pas été menées de manière efficace pour développer la capacité institutionnelle dans le domaine de la planification et l'administration de l'éducation. Plusieurs études importantes ont été achevées mais les résultats n'ont pas été analysés ni utilisés comme outils opérationnels nécessaires à l'amélioration de la planification et l'administration des activités du secteur de l'éducation. L'assistance technique prévue dans le projet a été incapable de transférer les connaissances et le savoir-faire aux cadres nationaux. Dans quelques cas, la qualité des études préparées par l'expert était médiocre . Dans un cas bien précis, la mission a constaté que le recrutement d'un assistant technique de long terme a été opéré sans le respect des procédures de la Banque Mondiale, même si celle-ci a donné son non objection. La garantie de la pérennité des impacts du projet. Le gouvernement n'a pas encore pu informer la mission sur le bénéfice et la garantie de la pérennité des impacts du projet. Si le gouvernement n'assure pas la pérennité de ces impacts du projet, il se posera alors des obstacles majeures concernant la qualité et les futures performances du secteur de l'éducation, surtout en ce moment où la situation macro- économique du pays n'est pas favorable. La mission est préoccupée de voir que durant la période 1990- 1995, le budget national consacré à l'éducation ait chuté à eu près de 5 %, d'autant que la taux croissance démographique est estimé à plus de 3%. 14. Durant le séjour de la mission, le gouvernement et la mission se sont mis d'accord sur les points suivants: (a) La solde disponible de compte spécial doit être reversé à l'IDA au plus tard le 30 novembre 1995. (b) La finition et réception des nouveaux locaux du CRIPEN sont fixées au 31 Octobre 1995, en tenant compte de la qualité des constructions. (c). La finition et réception des nouveaux locaux de l'inspection du Tadjourah y compris le deux logements sont fixées au 31 Octobre 1995. (d). Les curricula révisés pour le premier cycle du secondaire doivent être opérationnels la prochaine année scolaire 1996-97. (e) L 'information sur les économies réalisées grâce à l'adoption des mesures sur la réduction des coûts ainsi que leur affectation doit être communiquée à l'IDA au plus tard le 31 octobre 1995. (f) Le calendrier relatif à l'adoption de la mesure de suppression des allocations scolaires (les bourses) de l'enseignement secondaire doit être communiqué à l'IDA au plus tard le 31 décembre 1995. 39 APPENDIX A Page 6 of 6 (g) L'état d'avancement sur l'adoption des mesures relatives à la réduction des coûts qui ne sont pas encore appliquées doit être communiqué à l'IDA au plus tard le 31 octobre 1995, conformément à l'accord de crédit. 40 APPENDIX B Page 1 of 10 RAPPORT D'ACHEVEMENT DU DEUXIEME PROJET EDUCATION BANQUE MONDIALE (CREDIT IDA 2080-DJI) CONTRIBUTION DU GOUVERNEMENT DJIBOUTIEN I. DESCRIPTION ET DEMARRAGE DU PROJET 1 - HISTORIQUE ET CONTEXTE La République de Djibouti est un petit pays de 23 000 km2 , situé à l'entrée de la Mer Rouge, entre l'Ethiopie au sud-ouest et la Somalie au sud-est. La population est estimée à un peu plus de 500.000 habitants avec un taux de croissance démographique élevé (entre 3% et 4%), sans compter le poids des réfugiés originaires de pays limitrophes (Ethiopie et Somalie) confrontés à des guerres civiles. C'est dans un contexte économique et politique difficile que la République de Djibouti se trouve depuis son accession à l'Indépendance (en 1977). A part sa position géographique avantageuse (entre l'Afrique, l'Asie et l'Europe), son économie est principalement tournée vers la fourniture de services. Elle s'est dotée d'une chaîne de transports (le port, l'aéroport et le chemin de fer) et de moyens de télécommunications modernes. Cependant, il faut rappeler que la République de Djibouti est aujourd'hui confrontée à une situation économique assez difficile en raison de deux années de conflits internes (1991-1993). Il faut ajouter à cela les conséquences de la désintégration de la Somalie et le changement du régime en Ethiopie. 2- IDENTIFICATION ET OBJECTIFS DU PROJET Juste après l'accession à son indépendance en 1977, la République de Djibouti a inclue parmi ses objectifs prioritaires la valorisation intensive des ressources humaines indispensables au développement de son économie de services et l'amélioration des conditions de vie de la population. Ceci a été clairement affirmé par la suite dans la Loi d'Orientation Economique et Sociale n° 150/AN/91/2ème L pour la période 1990 à 2000. Pour ce faire, le Gouvernement de Djibouti a entrepris une politique qui consiste à favoriser l'accès à l'éducation et à la formation professionnelle pour tous les enfants en âge de fréquenter l'école en augmentant les capacités d'accueil de l'enseignement primaire ( par la construction d'écoles nouvelles) et de l'enseignement secondaire. C'est dans cette optique que furent initiés, à la demande du Gouvernement Djiboutien: " le premier projet Banque Mondiale qui prévoyait la construction de deux groupes scolaires dans la capitale et de huit écoles rurales " le premier projet Banque Africaine de Développement relatif à la construction du Lycée Industriel et Commercial d'une capacité d'accueil de 1.200 élèves en vue de former la main d'oeuvre qualifiée dont le pays a besoin Cependant la situation économique et démographique du pays évoluant assez rapidement, la République de Djibouti a demandé une mission d'évaluation de la Banque Mondiale en vue de renforcer davantage le secteur de l'éducation . Cette mission a séjourné à Djibouti en mai/juin 1989 et était composée d'un chef de mission, d'un économiste, d'un architecte et d'un éducateur/consultant. C'est à partir des résultats de cette mission qu'ont été définis les objectifs du deuxième projet éducation Banque Mondiale (l'objet du présent rapport) à savoir : 41 APPENDIX B Page 2 of 10 a) l'amélioration de la coordination de la formation professionnelle avec la structure du marché de l'emploi; b) l'accroissement de l'accès à l'enseignement primaire; c) l'amélioration de la pertinence et de la qualité de l'enseignement primaire et secondaire du premier cycle; et d) l'amélioration des capacités administratives du Ministère de l'Education Nationale tout en réduisant les coûts, et dans le cadre d'une affectation plus efficace des ressources. Il faut rappeler que le Programme des Nations-Unies pour le Développement (PNUD) et le Fonds Européen de Développement (FED) participent au co-financement des composantes exposées ci-dessus. Le plan de Financement du projet, en millions de dollars, se présente de la manière suivante: l'IDA = 5,82, le Gouvernement = 0,87, le P.N.U.D. = 0,42, et le F.E.D. = 0,40. 3- LES COMPOSANTES DU PROJET Le projet était composé de quatre parties A. Coordination de la formation professionnelle AI) Service national de l'emploi. Cette composante prévoyait la mise au point d'une solide base de données sur l'emploi et la réalisation d'études visant à redéfinir les attributions du Centre de Formation Professionnelle pour Adultes et la restructuration de la Direction de la Formation et de l'Emploi au sein du Ministère de Travail et de la Formation Professionnelle. A cet effet, le projet devrait prendre en charge le financement : " d'une assistance technique de 36 hommes-mois " de 26 hommes-mois de formation à l'étranger " de l'équipement et du mobilier A2) Conseil national de la formation et de l'emploi. Ce conseil qui relève de la Primature (aux services du Premier Ministre) devrait assurer la coordination de la formation et du marché de l'emploi. Il serait composé des différentes parties (publiques et privées) impliquées dans le secteur de l'emploi et de la formation. Le projet devrait prendre en charge le financement de 9 hommes-mois de formation, du coût de l'équipement et du matériel. B . L'accès à l'enseignement primaire. Pour améliorer l'accès à l'enseignement primaire, le projet prévoyait la construction, la livraison et l'installation de l'équipement et du mobilier pour trois écoles de 12 classes (une aux salines et deux à Balbala) et pour une école de 9 classes à Ali-Sabieh. Ces écoles, en fonctionnant selon le système de double vacation, devraient permettre de scolariser 4.500 élèves (17% des effectifs scolarisés en 1988-89). C. Qualité de l'éducation Cl) Centre de recherche, d'information et de production de l'éducation national (CRIPEN). Le projet prévoyait la construction des nouveaux locaux du CRIPEN, lequel aurait pour rôle d'adapter les programmes d'enseignement aux réalités du pays, de mettre au point des guides du maître et autres documents appropriés, d'évaluer les résultats des enseignements primaire et secondaire et d'aider à former le personnel d'enseignement. Pour ce faire, le projet avait prévu de financer la construction du CRIPEN et l'agrandissement des locaux de l'imprimerie scolaire existante ainsi que l'équipement et le mobilier; des manuels d'enseignement (mathématiques, sciences, français et arabe); 65 hommes-mois de services de consultants; 40 hommes-mois de formation à l'étranger. 42 APPENDIX B Page 3 of 10 C2) Le renforcement du contrôle et de l'encadrement de l'enseignement primaire. Dans le but d'accroître la fréquence et d'améliorer la qualité du soutien pédagogique fourni aux enseignants dans les zones rurales , le projet avait prévu le financement des travaux de construction de deux inspections régionales de l'enseignement primaire, l'une à Tadjourah (au nord) et l'autre à Dikhil (au sud) ; de l'équipement, du mobilier et des véhicules; 20 hommes-mois de formation. D. Planification et Administration DI) Service de la planification et autres services de la Direction Générale. Le projet prenait en charge: l'achat de mobilier, de matériel et de véhicules; 38 hommes-mois de formation et 24 hommes-mois d'assistance technique financés par le Programme des Nations-Unies; les coûts de fonctionnement supplémentaires. Cet apport du projet devrait permettre au service de la planification, principalement: " d'intensifier la collecte de données concernant l'éducation et d'effectuer des analyses, particulièrement sur les besoins non satisfaits de l'enseignement primaire et sur l'enseignement supérieur; " de réaliser deux études sur les coûts et le financement de l'éducation; " d'achever la réalisation d'une carte scolaire pour l'enseignement primaire et secondaire; " d'assurer en collaboration avec le CRIPEN un suivi socio-professionnel des diplômés de la formation professionnelle du Ministère; " d'effectuer une étude sur l'organisation et la gestion du M.E.N.; et " de préparer les examens annuels du programme d'investissement sectoriel. D2) La gestion du projet. L'organe d'exécution de ce projet est le Bureau d'Exécution des Projets d'Education (BEPE) auquel ont déjà été confiés la gestion, le suivi et la supervision de l'exécution du premier projet Banque Mondiale. Le projet avait prévu de doter le BEPE de mobilier, d'équipements et de véhicules, de mettre à sa disposition les fonds nécessaires à la vérification des comptes du projet et son fonctionnement Il. EXECUTION ET IMPACT DU PROJET 1 - EXECUTION DU PROJET. L'exécution des différentes composantes s'est déroulée globalement de manière satisfaisante. Cependant un certain nombre de remarques s'imposent : • la composante relative au Conseil National de la Formation et de l'Emploi n'a pas vu le jour même si le décret a été officialisé. car les cadres nationaux destinés au renforcement du secrétariat de ce dernier n'ont pas été recrutés * l'assistance technique de 24 hommes-mois financée par le FED et qui avait pour mission de mettre au point une solide base de données, a produit un travail incomplet et d'une faible qualité. " les études sur la carte scolaire et sur le plan quinquennal menées par l'expert recruté dans le cadre du renforcement de la planification et de l'administration de l'éducation sont aussi d'une qualité médiocre Faut-il encore rappeler que le projet a été exécuté dans un contexte économique, politique et social difficile pendant la période 1991-1994 (conflits internes, désintégration de la Somalie et changement du régime en Ethiopie). Cela a eu des effets négatifs sur l'exécution des différentes composantes du projet. 43 APPENDIX B Page 4 of 10 Cependant, la bonne gestion du crédit opérée par le B.E.P.E , s'ajoutant surtout au budget non affecté de 970.000 DTS et à un taux de change favorable tout au long du projet ont permis de prévoir bien avant sa fin l'existence d'un reliquat très important. Le Gouvernement de Djibouti a saisi cette opportunité en introduisant en Mars 1994 une requête auprès de la Banque Mondiale en vue d'utiliser ce crédit disponible, dans le cadre de la construction d'un Collège d'Enseignement Secondaire à Balbala (quartier à forte densité de population défavorisée), financé en grande partie sous forme de don par le Japon. 2- PRINCIPAUX RESULTATS OBTENUS (a). Construction. Ce projet a permis de réaliser les infrastructures suivantes: " Construction de 3 groupes scolaires de 12 salles de classe à Djibouti-Ville et un groupe scolaire de 9 salles de classe à Ali-Sabieh avec pour chaque groupe un logement, un bureau, un magasin, un bloc sanitaire, un local d'entretien et une clôture. Donc, la capacité d'accueil des établissements scolaires a été augmentée de 45 classes; " Construction terminée pour l'inspection du sud basée à Dikhil et reprise des travaux interrompus par les conflits en ce qui concerne l'inspection du Nord (fin des travaux prévus pour fin octobre), " Construction du CRIPEN pratiquement terminée; l'imprimerie scolaire a été réaménagée, " Construction de trois logements administratifs, des clôtures intérieure et extérieure ainsi que les travaux de drainage du C.E.S de Balbala (ces réalisations ont été financées dans le cadre de l'utilisation du reliquat). Toutes ces constructions ont été réalisées conformément au rapport d'évaluation (à l'exception du cofinancement du CES de Balbala) et aux dossiers d'appels d'offres. (b). Mobilier/Eguipement/Véhicules. Le projet a financé pour chacune des composantes suivantes: * Service National de l'Emploi : l'achat d'un véhicule 4x4, des équipements et du mobilier de bureau " Conseil National de la Formation et de l'Emploi : un lot de mobilier et équipement pour son secrétariat technique. Mais cette composante n'ayant pu démarrer comme prévu, ce matériel a été attribué au B.E.P.E et au service de la planification, compte tenu des besoins engendrés par le volume croissant des activités qu'ils ont actuellement à mener. • Enseignement Primaire : du mobilier, équipement et matériel didactique pour les 45 salles de classe construites ; des manuels scolaires et dictionnaires pour les élèves de CM1. * renforcement du contrôle et de l'encadrement de l'enseignement primaire: il a été acquis en faveur de deux inspections (du sud et du nord) deux véhicules 4x4; du mobilier et de l'équipement de bureau. * CRIPEN : il lui a été fourni deux véhicules (un 4x4 et une berline); du mobilier et de l'équipement de bureau. Le matériel d'imprimerie et de photographie n'a pu être acquis en raison de l'inexistence d'entreprises pouvant assurer la maintenance après l'expiration de la période de garantie. 44 APPENDIX B Page 5 of 10 Planification et Administration : cette composante a reçu un véhicule (4x4) aujourd'hui inutilisable suite à un accident, un lot d'équipement, de mobilier et de documentation gestion du projet: Le B.E.P.E a bénéficié de l'achat de deux véhicules. (c). Assistance technique • Service National de l'Emploi : il a bénéficié, de 1990-92 dans u.i premier temps sur financement du F.E.D d'une assistance technique de 24 hommes-mois. Cette assistance n'a pas eu les effets escomptés car l'expert qui a été recruté n'a pas associé les cadres du S.N.E aux différentes démarches et recherches entreprises pendant la durée de sa mission, mais surtout n'a produit un travail de qualité. L'IDA a financé pour trois mois à partir de Janvier 1995( mission très courte en raison de la date de clôture du crédit fixée au 31/03/95) l'assistance d'une équipe pluridisciplinaire composée de trois experts (appui à la Direction de l'Emploi et de la Formation Professionnelle, au Service National de l'Emploi, au Centre de Formation Professionnelle pour Adultes). Cette équipe au vu du temps qui lui était imparti et des objectifs qui lui étaient fixés, a fait preuve d'une grande efficacité. Un travail de qualité a été réalisé sur le terrain. Des plans d'action et de recommandations ont été formulés en vue d'éventuels programmes futurs. • CRIPEN : un contrat a été signé, en février 1991, avec un bureau d'études beige pour l'ensemble des prestations prévues. Dans ce cadre, les études et missions suivantes ont été effectuées : * une expertise en mesures et évaluation du niveau de la qualité et du rendement cognitif de l'enseignement primaire et secondaire premier cycle d'une durée de trente mois. * une expertise pour l'adaptation des programmes du primaire et la détermination du profil de sortie de l'élève du premier degré d'une durée de 20 mois. Ces programmes sont officialisés et mis en oeuvre dans les écoles primaires, * une expertise pour l'adaptation des programmes du premier cycle du secondaire d'une durée de 6 mois (mission achevée en mai 95). Ces programmes ne sont pas encore officiels, * un séminaire d'un mois (animé par un spécialiste)et portant sur l'évaluation des curricula de la formation initiale, a été organisé en faveur des instituteurs, * un séminaire, d'une durée d'un mois, sur la gestion et l'administration des établissements a été organisé en faveur des directeurs d'école, * un séminaire, d'une durée d'un mois, de formation à l'évaluation formative a été organisé en faveur des inspecteurs, directeurs d'école et conseillers pédagogiques. • Planification et Administration : réalisations par rapport aux assistances techniques prévues dans le cadre de ce projet, en faveur de cette composante: * spécialiste en planification de l'éducation : 2 experts se sont succédés (l'un pour une durée d'un mois, l'autre pour 10 mois). Le deuxième expert est parti avant la fin de son contrat, à la demande du gouvernement et n'a pas transmis à ce dernier les résultats de son travail * assistance technique de 13 mois 2 pour la rédaction d'un plan quinquennal a produit un travail d'une faible qualité 45 APPENDIX B Page 6 of 10 * assistance technique de 2 hommes-mois pour effectuer une étude sur le coût et financement de l'éducation a produit un travail assez intéressant et déjà exploité dans le cadre d'autres études (évaluation globale du système éducatif ) * assistance technique de 2 hommes-mois pour la réalisation de la carte scolaire a, elle aussi produit un travail d'une faible qualité (d) Formation • Service National de l'Emploi : sur les 26 hommes-mois de formation que prévoyait le projet, les cadres du SNE ont réellement bénéficié de 5 hommes-mois (dont une sur financement de la Banque Mondiale). Le FED n'a pas financé la composante à hauteur des sommes prévues lors du démarrage du projet. • CNFE : les 9 hommes-mois prévus pour cette composante n'ont pu être utilisés, le bénéficiaire de cette formation n'ayant pas été recruté au préalable. • Renforcement du contrôle et de l'encadrement de l'Enseignement Primaire: les 20 hommes-mois destinés à la formation théorique de deux inspecteurs du premier degré ont été exécutés comme prévu. • CRIPEN : ont bénéficié de formation dans le cadre de cette composante * un chercheur en didactique du français (8 mois) * un maquettiste (10 mois) * une secrétaire d'édition (5 mois) * le directeur du CRIPEN (voyages d'études à l'étranger) * un évaluateur (6 mois à l'université de Montréal et 1 à l'université catholique de Louvain-la-Neuve) " Planification et Administration, dans le cadre de cette composante, le PNUD a réellement financé 16 hommes/mois de formation: * le Chef du Service Administratif (2 mois au CIEP de Paris), * le Chef du Bureau des Bourses (2 mois au CIES de Paris) * le Directeur Général de l'Education Nationale (2 mois à l'école Lou Green de Londres et au CIES) * le Chef du Service du Personnel et le Chef du Bureau du personnel (2x2 mois) * le Chef du Bureau des Examens (3 mois au CIEP de Sèvres) * le Chef du Bureau de l'Organisation Scolaire (2 mois à l'IREDU de Dijon) " Le BEPE : le comptable et le coordinateur-adjoint ont bénéficié d'un séminaire portant sur les procédures de décaissements et de passation de marchés de la Banque Mondiale (de 15 jour s à Madagascar). 3. IMPACT MAJEUR DU PROJET SUR LE SYSTEME EDUCATIF Nous sommes en mesure d'affirmer que l'impact du projet sur le système éducatif djiboutien est globalement positif, ce jugement devant être nuancé en ce qui concerne le SNE, le CNFE et la composante renforcement à la planification et l'administration de l'éducation. 3.1. Service National de lEmploi. Malgré l'insuffisance de ressources humaines qualifiées et le maigre travail de l'assistance technique de long terme financé par le FED, le projet a apporté à cette composante un soutien matériel nécessaire à l'exécution de tâches quotidiennes (véhicule, mobilier et équipement). 46 APPENDIX B Page 7 of 10 L'assistance technique du BCEOM et les différentes formations dont ont bénéficié deux cadres du SNE et le Directeur de l'Emploi et de la Formation Professionnelle ont permis à cette composante de mettre en place une base d'outils, certes embryonnaire, mais exploitable, en vue de faire jouer rapidement, à ce secteur son véritable rôle si les moyens adéquats lui sont un jour accordés. 3.2. Le Centre National pour la Formation de l'Emploi. Ce centre devait selon les objectifs fixés dans le rapport d'évaluation jouer un rôle prépondérant en ce qui concerne la coordination de la formation professionnelle en République de Djibouti, en répertoriant et en rationalisant pour une meilleure utilisation les ressources des différents centres de formation existants. Même si le décret fixant ses prérogatives a été officialisé, les cadres nécessaires à son fonctionnement n'ont pas été recrutés et par voie de conséquence n'ont pas été formés. 3.3 L'Education Nationale e L'impact du projet sur le système éducatif est globalement positif. La construction des nouvelles écoles a permis d'augmenter la capacité d'accueil de l'enseignement primaire, mais aussi a permis aux élèves et aux enseignants de travailler dans de bonnes conditions. La construction des quatre écoles primaires à Djibouti a permis d'accroître la capacité d'accueil de l'enseignement primaire de 3.627 places (à la date du 31 Mai 1995). Néanmoins, ces écoles sont construites dans des zones où la poussée démographique est très forte. Aujourd'hui, l'occupation des salles en terme des places est respectivement de 97,5% ; 95,8% ; 85,7 % pour les secteurs de Balbala, des Salines- Ouest et d'Ali-Sabieh. e En ce qui concerne les inspections régionales (dont une est en cours de finition), il a été observé depuis le démarrage du projet: - une déconcentration effective de la gestion des écoles et des maîtres. Chaque inspection est dotée d'une autonomie sur le plan de la gestion pédagogique - une meilleure fréquence et répartition des visites, contrôles, suivis et régulations des actions éducatives - un accroissement significatif du volume des actions de formation - enfin, une meilleure sensibilisation en faveur de la scolarisation des populations rurales grâce aux actions d'information et de sensibilisation menées par les inspecteurs. Nous résumons brièvement l'impact de ces actions dans le tableau ci-dessous : Actions Avant la mise en place des Après la mise en place des inspections inspections Visites d'écoles (but: informer les enseignants et 0 à 1 visite d'école par mois 2 à 4 visites d'informations et de suivi s'informer des problèmes) par école et par mois Actions de régulations de l'enseignement 0 à 1 inspection par école par an 2 à 3 d'école par an dispensé (évaluation et remèdiation) Inspection d'enseignants non 1 inspection d'enseignant systématique systématique Actions d'aide et de formation 1·visite du Conseiller 4 visites du Conseiller Pédagogique par Pédagogique par enseignant enseignant et par mois 8 heures (une journée) par 4 heures par enseignant et par mois. _-__ - - - -enseignant et par an 47 APPENDIX B Page 8 of 10 Quant au CRIPEN (dont les locaux seront opérationnels en Octobre 1995), le deuxième projet Education lui a donné une nouvelle envergure qui pourrait lui permettre de répondre rapidement à ses missions qui sont de piloter et d'exploiter les recherches pédagogiques, d'élaborer et de diffuser une information sur le système éducatif, de produire par l'édition et les moyens audiovisuels des documents destinés à l'enseignement. Le CRIPEN a par exemple produit depuis 1990 plus de 150 émissions radiophoniques éducatives grâce à sa radio scolaire. Il a aussi * produit grâce à un personnel très renforcé (30 personnes dont 6 assistants techniques français) le matériel didactique et pédagogique (livres du maître et de l'élève) correspondant aux nouveaux curricula du primaire conçus grâce à l'assistance technique financée par le projet. * Le service de la Planification et le BEPE ont surtout profité de la dynamique créée par le projet en se renforçant en moyens matériels et en personnel qualifié (formé surtout au contact des différentes missions et assistances techniques), permettant ainsi à la Direction Générale de l'Education de disposer d'outils capables de répondre à ses besoins dans le domaine de la gestion des projets et de la planification de l'éducation. • Enfin en ce qui concerne la participation de l'IDA (en co-financement avec le gouvernement japonais) à la construction et l'équipement du CES de Balbala, il est très trop tôt pour évaluer son impact. Néanmoins, cela ne nous empêche pas d'affirmer que ce CES accueillera plus de 1200 élèves dans des très bonnes conditions. Il contribuera certainement à l'amélioration de la qualité de l'enseignement en mettant à la disposition des élèves des outils pédagogiques modernes et performants. III. ANALYSE CRITIQUE DE L'ACTION DE LA BANQUE, DU GOUVERNEMENT ET L'ASSISTANCE TECHNIQUE 1. APPRECIATION DE L'ACTION DE LA BANOUE AU COURS DE L'EXECUTION DU PROJET La Banque a, tout au long du projet facilité l'exécution normale des différente composantes du projet: " en transmettant au BEPE rapidement ses non-objections et ses avis (dans les 48 heures qui suivent la demande ou la réception de dossiers et rapports); " en accélérant le décaissement des demandes de paiement; " en approuvant l'utilisation du reliquat et en acceptant par voie de conséquence la réallocation des fonds; " en assurant le suivi régulier du projet sur le terrain. 2. INTERVENTIONS DU PROGRAMME DES NATIONS-UNIES POUR LE DEVELOPPEMENT ET DU FONDS EUROPEEN DE DEVELOPPEMENT Ces institutions ont globalement apporté un soutien financier à l'exécution du projet. Cependant, les précisions suivantes s'imposent: - en ce qui concerne le PNUD, /4 des fonds initialement alloués ont été décaissés même si la formation des cadres de la composante renforcement de la Planification et de l'Administration de l'Education n'a pas été menée à son terme. - en ce qui concerne le FED, le BEPE ne dispose pas des sommes réellement décaissées. 48 APPENDIX B Page 9 of 10 3. L'ACTION DU GOUVERNEMENT AU COURS DE L'EXECUTION DU PROJET De manière générale, il faut souligner que le gouvernement a rempli dans le délai raisonnable une partie des conditions préalables à l'entrée en vigueur du crédit et a laissé le bureau d'exécution poursuivre les réalisations engagées. L'action et la participation du gouvernement djiboutien peuvent être observées sous plusieurs aspects : (a) Ressources humaines. Il faut dire à ce sujet que le gouvernement a fait globalement un effort important en mobilisant un personnel d'expérience nécessaire à la réussite du projet et en le renforçant par le recrutement d'un personnel supplémentaire au cours de l'exécution du projet. Néanmoins, il faut relever quelques exceptions en ce qui concerne certains volets (CNFE et SNE) ou le personnel requis n'a pas du tout été identifié et engagé, ou a été partiellement engagé. Ceci a eu par la suite un impact négatif sur l'exécution des ces volets. Enfin, pour la plupart des assistances techniques, le transfert du savoir faire et des compétences aux cadres locaux n'a pas eu lieu. (b) Coordination et gestion du projet. La coordination du projet a été l'oeuvre du Directeur Général de l'Education Nationale. Comme l'ont constaté les différentes missions de supervision de la Banque, la coordination et la gestion des différentes activités pendant tout le long du projet se sont bien déroulées. Le BEPE, profitant de son expérience acquise dans le cadre du premier projet, en ce qui concerne les procédures de la Banque Mondiale (passation de marchés et décaissements), a terminé l'exécution de toutes les composantes (sauf pour le génie civil du CES de Balbala) avant la date de clôture de crédit. Les rapports d'avancement ainsi que ceux des différentes missions et d'audits ont été régulièrement transmis à la Banque, conformément à l'accord de crédit. En ce qui concerne la partie génie civil, elle a été dirigée par la Direction de l'Urbanisme et du Logement, depuis la préparation des dossiers d'appel d'offres jusqu'au suivi et au contrôle des chantiers. Cependant, pour améliorer dans l'avenir la qualité de la coordination et assurer un meilleur pilotage des projets, il serait souhaitable de doter du BEPE de plus de moyens à savoir: e une autonomie financière (disposer d'un compte hors du Trésor National) a élargissement de son champ d'intervention a renforcement du BEPE de quelques spécialistes ( architecte ou ingénieur en bâtiment) e renforcer et accélérer la formation du personnel existant au niveau du BEPE et du service de la planification (c) Ressources financières. La performance de l'emprunteur est moyenne, même si les fonds de contrepartie ont été régulièrement inscrits chaque année dans le cadre du budget extraordinaire. Les dettes envers les fournisseurs dues aussi bien dans le cadre de la contrepartie djiboutienne que par le biais du compte spécial sont généralement payées avec beaucoup de retard. Cette situation a crée une détérioration des relations entre les fournisseurs locaux et le BEPE et par la même a ralenti l'exécution normale du projet. En ce qui concerne le fonctionnement du compte spécial, une solution raisonnable devra être identifiée et proposée, dans l'avenir, avec l'accord de toutes les parties. 4. COORDINATION DU POINT DE VUE DE TOUS LES INTERVENANTS DU PROJET Il est constaté qu'un certain nombre d'objectifs du projet n'ont pu être atteint par manque de coordination et de concertation entre toutes les parties prenantes au projet. Comme nous venons de l'exposer ci-dessus, (paragraphe 3.b), il est plus que nécessaire pour les futurs projets de mettre en place un mécanisme transparent assurant la coordination de tous les partenaires intervenants sur le secteur éducatif avec comme point focal le BEPE. 49 APPENDIX B Page 10 of 10 5. EVALUATION DES PERFORMANCES DES BUREAU D'ETUDES AYANT PARTICIPE A LA REALISATION DU PROJET (a). Le cabinet d'audit Jean ARTHUIS et Associés. Il a respecté ses engagements en effectuant chaque année une mission d'audit des comptes du projet et en remettant le rapport d'audit dans les temps requis. Ses performances peuvent être qualifiées de satisfaisantes. (b) L'Institut Belge de Formation. Il a mis à la disposition du BEPE des experts de qualité dont les profils répondaient aux termes de référence. Cependant, un retard imputable au bureau d'études a été enregistré dans l'exécution de la partie relative au développement des nouveaux curricula du secondaire premier cycle. Cependant ses prestations sont globalement satisfaisantes. (c) Le BCEOM. Ce bureau d'études est intervenu dans le cadre de l'évaluation globale du système éducatif et dans le cadre de l'appui au Ministère du Travail et de la Formation Professionnelle. Dans les deux cas, ce bureau d'études a fait preuve d'une grande efficacité en proposant un personnel de qualité qui a fourni un travail remarquable et dans un laps de temps très réduit. IV. EVALUATION ECONOMIQUE ET FINANCIERE DU PROJET Le Gouvernement a transmis à la mission: (i) un plan pour les opérations futures en vue d'optimiser les impacts du projet de toutes ces composantes; et (ii) une note signée par le Premier Ministre dans laquelle le Gouvernement s'engage fermement à atteindre 5 objectifs clés qui pourraient redonner au secteur éducatif sa place à court terme. N.B. L'Emprunteur a également préparé plusieurs annexes, à savoir: (a) les indicateurs clés de la phase d'exécution du projet; (b) réalisations du projet à la date du 17/9/95; coûts de fonctionnement engendres par la composante enseignement primaire; (c) coûts de fonctionnement engendrés par la composante enseignement primaire; (d) coûts récurrents engendrés par la composante inspection primaire; (e) coûts récurrents de la composante CRIPEN; (f) coûts de fonctionnement additionnels engendrés par la composante planification; (f) expansion de l'enseignement primaire; (g) financement du projet en FD au 30/09/95; (h) réalisations du projet: montants et délais effectués; (i) répartition des coûts du projet par catégories et par source de financement; (j) études et assistances techniques réalisées dans le cadre du projet; (k) formation réalisées dans le cadre du deuxième projet éducation; (1) l'évolution des montants économisés après la réduction d'un tiers des présalaires perçus par les élèves enseignement; (m) la part de la catégorie des instituteurs-adjoints dans l'évolution des enseignants du premier cycle; et (n) le plan opérationnel pour le futures composantes de l'education.  APPENDIX C DJIBOUTI Manpower and Education Development Project Appendix C Summary of Cofinancier Contribution to ICR The European Development Fund (FED) provided comments on the draft ICR. Information confirming the total amount disbursed by the FED has been incorporated in the final report. Thqre were no comments from the United Nations Development Program (UNDP) on the draft ICR. APPENDIX D Page 1 of 2 DJIBOUTI Manpower and Education Development Project Expansion of Primary Education Students Teachers Students Teachers Primary Schools Before the Project After the Project 1989/1990 1994/1995 DISTRICT OF DJIBOUTI Djiboui City Al-Hourya - - 966 24 Ambouli I 1059 24 1028 26 Ambouli II 1114 25 1151 29 Arhiba 1187 27 1179 27 Balbalal 1193 25 1263 24 Balbalal 1226 25 1242 33 Balbala III - - 1250 28 Balbala IV(Tour-ousbo) - - 1165 29 Balbala V(Dogleh) - - 876 28 Boulaos 643 17 637 20 Einguella 1109 26 1238 29 Gabodel 656 18 652 23 Gabodell 633 17 1242 CES Gachamaleh 1126 28 964 25 Guelleh Balah 805 19 929 27 Hadj-Dideh 852 20 1022 25 La Plaine 622 16 852 23 Quartier 5 1047 24 1009 27 Quartier 6 857 24 846 26 Quarter 6 bis 952 23 943 26 Quartier7 1017 27 961 26 Quartier 7 bis 1130 26 982 25 Republique 794 22 961 26 Stade 725 17 709 22 Z.P.S. 1040 25 1289 29 Sub-total 19787 475 25356 625 Djibouti-Rural Arta 346 13 412 14 Chebelley 23 1 54 3 Dainmerjog 243 6 341 12 Dora16 111 4 121 6 Douda 129 4 141 6 W6a 245 6 309 15 Sub-total 1097 34 1378 56 APPENDIX D Page 2 of 2 Students Teachers Students Teachers Primary Schools Before the Project After the Project 1989/1990 1994/1995 DISTRICT OF ALI-SABIEH Ali-Adde 134 6 152 6 Ali-Sabiehl 1105 26 995 24 Ali-Sabieh II - - 620 19 Assamo 51 2 58 2 Dasbyo 85 4 80 4 Goubetto 119 3 112 3 Holl-Holl 289 12 365 14 Mouloud 215 6 190 6 Sub-total 1998 59 2572 78 DISTRICTOF DIKHLL As-Eyla 293 8 393 14 Bondasra 48 1 62 3 Dikhil I 1086 26 1025 27 Dikhil II - - 537 14 Kontali 47 1 89 4 Yobaki 290 8 95 5 Garabous 114 3 - - Sub-total 1878 47 2201 67 DISTRICTOF TADJOUlRAH Ardo 70 2 73 2 Adaillou 150 5 141 4 Kalaf 129 3 95 3 Randa 350 13 100 4 Sagallou 196 7 56 2 Tadjourah I 910 21 549 17 Tadjourah II - - 609 18 Ripta 45 2 - - Dorra 150 4 - - As-Guella 59 2 - - Day 101 4 - - Guirori 80 2 - - Moudo 50 2 - - Sub-total 2290 67 1623 50 DISTRICT OF OBOCK Obock 587 16 - - Alaili Dada 71 3 - - Lahassa 30 2 - - Waddi 78 3 - - Medeho 68 2 - - Sub-total 834 26 - - TOTAL 27884 708 31888 876 APPENDIX E DJIBOUTI Manpower and Education Development Project Recurent Costs - Primary Education (in Djibutian Francs) ESTIMATED ACTUAL No. of No. of Annual Salary Total salary No. of Annual salary Total salary 1. SALARIES Classrooms Teachers per teacher per year teachers per teacher per year 24 teachers 853,512 20,484,288 28 teachers 791,496 22,161,888 Balbala IV 12 1 school director 1,474,248 1,474,248 1 school director 1,258,856 1,258,856 2 cleaning 213,600 427,200 3 cleaning 217,500 652,500 personnel personnel 24 teachers 853,512 20,484,288 25 teachers 791,496 19,787,400 Balbala V 12 1 school director 1,474,248 1,474,248 1 school director 1,258,856 1,258,856 2 cleaning 213,600 427,200 4 cleaning 217,500 870,000 personnel personnel 24 teachers 853,512 20,484,288 23 teachers 868,980 19,986,540 Salines Ouest 12 1 school director 1,474,248 1,474,248 1 school director 1,319,184 1,319,184 2 cleaning 213,600 427,200 3 cleaning 217,500 652,500 personnel personnel 18 teachers 853,512 15,363,216 18 teachers 791,496 14,246,928 Ali-Sabieh 11 9 1 school director 1,474,248 1,474,248 1 school director 1,862,172 1,862,172 1 cleaning 213,600 213,600 1 cleaning 217,500 217,500 personnel personnel 2. HOUSING 90 teachers 35,000 ' 37,800,000 64 teachers 35,0002 26,880,000 BENEFITS 3. OPERATING Paid by the Government out of its "Charges Communes" Budget COSTS (water, electricity, telephone) Sources Department of Education Planning, 1994/95. Average monthly allowance. For single teachers, monthly allowance is FD 30,000, for married teachers, monthly allowance is FD 40,000. APPENDIX F ESTIMATED AND ACTUAL COSTS - PRIMARY SCHOOL CONSTRUCTION PROJECT COST ACTUAL COST Textbooks/ School furniture/ Textbooks/ School Furniture/ School Location Civil Worls school materials equipment Civil Works school materials equipment Ali-Sabieh 106,400,000 98,454,800 9 classrooms (601,130) (556,242) Al-Hourya 111,800,000 102,005,680 12 classrooms (631,638) (576,303) Tour-Ousbo 111,800,000 95,622,223 12 classroons (631,638) (540,238) Dogley 111,800,000 95,418,332 12 classrooms (631,638) (539,081) Total Project costs 46,800,000 40,760,520 34,121,499 51,720,001 for goods (264,407) (230,285) (192,777) (292,203) TOTAL' 441,800,000 46,800,000 40,760,520 391,501,035 34,121,499 51,720,001 (2,2%,044) (264,407) (230,285) (2,211,870) (192,777) (292,203) UNIT COST PER STUDENT - ESTIMATED AND ACTUAL Estimated Actual Works US$ 555.00 US$ 491.00 Textbooks/school materials USS 59.00 US$ 44.00 Furniturelequipment USS 51.00 US$ 65.00 Unit cost per student USS 665.00 USS 600.00 Figures in parenthesis represent amount in US$ equivalent, based on exchange rate of FD 177 to US$ 1.  eRD 7906R REP OF 4230 4300 RTREA YEMEN REUNC OF _ DJIBOUTI JIOUTI EHPIMANPOWER AND EDUCATION DEVELOPMENT PROJECT nb.b SOM~AUA h. 0 6 0' Ababa do - 30,- The boutdar,es, olors,-/- denom,nat,.ns and any - other nformat'orn shown on tis mntap do not impoy, n the pa nf The World Sank Group, any judgrent on tie legal sl1us o any territory, nr any endorsemrent or acceptnce of such bondares. -r200-o 0,. 1D Thdi GULF OF - f OF GAGADE .bonn obo 3i PLaN~~~~~R ,~R,o In ou,r *FLF PETI T BARA Natonal Service for -D 5Empoyment -T National Council for Traiing and Employment O Educotion Research !nformflation DAKKAu- and Producnon Center S Ab . ddÅ Educationro sMancigemnent * nspectorotes po ,o PS Primary Schoos i--- - ved, oa0 ETHIOPIA~~P,e -- roed Erhod ~. - ETHIOPIA a Seleded Viages and Towns Ipoed Ea R DIýi,ict~ -clpt-l Maiin Tracks (National) (5 Dislrict Capltals ¶oinl 38 Spot Elevaotons - - - Other Tracks KIOMETERS 4 10 20 30 40 s0 ® Nationo CopitoW -- , Seasonai Rivers iWod,s) Rairood Sid5 o 0o 2L:ad Solt Fint ji. nternationo Airport --- ---- nternaotional Boundaries i Drink,ng Water † Airfields and Airstrips 42"00 42o30' 43 00 E  IMAG1NG Report NO: 157Ù1 Type: ICR