Senegal - Technical and Agricultural Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 2231 FILE COPY PROJECT PERFORMANCE AUDIT REPORT SENEGAL: FIRST EDUCATION PROJECT (CREDIT 253-SE) October 4, 1978 Operations Evaluation Department This document has a restMeted 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.  FOR OFFICIAL USE ONLY PROJECT PERFORMANCE AUDIT REPORT SENEGAL FIRST EDUCATION PROJECT (CREDIT 253-SE) TABLE OF CONTENTS Page No. PREFACE PROJECT PERFORMANCE AUDIT BASIC DATA SHEETS HIGHLIGHTS PROJECT PERFORMANCE AUDIT MEMORANDUM I. Project Background 1 II. Principal Issues 4 1. Inefficiencies in Project Generation 4 (a) The Time Taken to Process the Project 4 (b) Problems of Finalizing Agreement on Project Details *6 2. Physical Implementation and Costs 7 3. Supervision by IDA 8 III. Project Outcomes 9 (a) Institute of Technology 9. (b) Agricultural and Secondary Technical Education 11, IV. Conclusions 11 ATTACHMENT: PROJECT COMPLETION REPORT SUMMARY AND RECOMMENDATIONS i I. PROJECT BACKGROUND A.1 General A.1 The Education System A.1 The Project A.2 II. PHYSICAL IMPLEMENTATION A.4 General Observations A.4 University Technology Institute A.4 Technical Lycee - Andre Peytavin A.5 Technical Lycee - Delafosse A.6 Agricultural School in Ziguinchor A.6 Merchant Marine School A.6 Equipment A.6 Project Costs A.7 Disbursements A.8 Project Management A.9 III. PROJECT OUTCOMES A.9 General A.9 University Technology Institute A.10 Employment Prospects for IUT Graduates A.11 Employers' Evaluation of the IUT A.12 Recurrent Cost of the IUT A.13 Secondary Technical Education A.14 Agricultural School in Ziguinchor A.15 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. TABLE OF CONTENTS (Cont'd) Page No. IV. CONCLUSIONS A.15 ANNEXES Annex 1 - Comparison Between Architectural Program and the Project Schools as Constructed Annex 2 - Original Implementation Schedule and Costs for Civil Works Compared to Actual Implementation and Costs Annex 3 - Comparison Between Estimated and Actual Costs of Equipment Annex-4 - Appraisal Cost Estimates and Actual Costs by Component Annex 5 - Credit Allocations, Disbursements and Project Costs in US$ Annex 6 - Schedule of Disbursements (February 1977) Annex 7 - Flow of Disbursements, Projected at Appraisal and Actual Annex 8 - Status of Fulfillment of Credit Covenants Annex 9 - Interviews of Employers Conducted by the Mission Annex 10 - Organization of the Complementary Training Course - Industrial Department, Business Department - IUT Annex 11 - IUT - Student Flow (1975/76) Annex 12 - IUT - Graduates by Specialization (1971-1975) Annex 13 - IUT - Enrollments (1966-1975) Annex 14 - IUT - Estimated Recurrent Cost (1976/77) Annex 15 - IUT - Staffing Position (1975/76) Annex 16 - Enrollment in Technical Schools (1970-76) Annex 17 - Merchant Marine School - Enrollment and Number of Classes (1975/76) PROJECT PERFORMANCE AUDIT REPORT SENEGAL FIRST EDUCATION PROJECT (CREDIT 253-SE) PREFACE This is a performance audit of the First Education Project in Senegal (Credit 253-SE) for which a credit of US$2.0 million was approved in June 1971. By March 31, 1978, US$1,995,670.05 had been disbursed and the balance of US$4,329.95 was cancelled. An Operations Evaluation Department mission visited Senegal January 22-29, 1978 and held discussions on the project with officials in the Ministries of Planning and Cooperation, Finance, National Education, Higher Education and Public Works, the Secretariat of State for Human Development and the University Institute of Technology. The cooperation extended by these officials is gratefully acknowledged. The audit memorandum is based on a review of the Credit Agreement, the Appraisal Report (PE-30a) dated May 26, 1971, the Project Completion Report (PCR) dated April 18, 1977 prepared by the Western Africa Regional Office, material in the Bank's files relating to this project and to the Second Education Project and on the. discussions held in the field by the"QED mission. Discussions have also been held with Bank staff and consultants currently and formerly associated with the project. This audit memorandum generally concurs in the findings of the PCR but makes a more detailed evaluation of the project's generation and design, looks more in depth into some of the factors which caused delays and makes suggestions for improvement.  PROJECT PERFORMANCE AUDIT BASIC DATA SHEET SENEGAL FIRST EDUCATION PROJECT (CREDIT 253-SE) KEY PROJECT DATA Appraisal Actual or Expectation Current Estimate Total Project Cost (US$ m1n.) 2.5 3.6 Overrun % 44 Credit Amount 2.0 Disbursed as at) 3/31/78 2.01' Cancelled ) 3/31/78 Repaid to ) Outstanding as at) 3/4/78 2.001/ Date Physical Components Completed Feb. 1975 Oct. 1976, Proportion Completed by Above Date (%) 60 100 Proportion of Time Overrun - 40 Economic Rate of Return n.a. n.a. Financial Performance n.a. n.a. Institutional Performance Satisfactory Satisfactory OTHER PROJECT DATA Original Actual or Plan Revisions Estimated Actual First Mention in Files Apr. 7, 1966 Government's Application Mar. 20, 1970 Negotiations May 1971 Board Approval June 10, 1971 Credit Agreement Date June 18, 1971 Effectiveness Date Sept. 22, 1971 Nov. 1, 1971 Nov. 30, 1971 Closing Date Oct. 1, 1976 Dec. 31, 1976; June 30, 1977 Mar. 31, 1977 Borrower Republic of Senegal Executing Agency Ministry of Public Works Fiscal Year of Borrower July 1 - June 30 Follow-on Project Name Second Education Project Credit Number Cr. 530-SE Amount (US$ m1n.) 15.0 Credit Agreement Date February 19, 1975 1/ Actual amount disbursed was US$1,995,670.05, The balance was cancelled. 2/ Includes exchange adjustment of $6,456,39. .PROJECT PERFORMANCE AUDIT BASIC DATA SHEET (Cont'd.) MISSION DATA No. of No. of No. of Date of Item Sent By Month/Year Weeks Persons Manweeks Report econnaissance Bank/Unesco/FAO Jan. 1967 1.4 4 5.6 Mar. 14, 1967 econnaissance Bank/Unesco May 1968 1.4 2 2.8 July 22, 1968 dentification Unesco May/June 1969 5.0 4 20.0 July 1969 econnaissance Bank/Unesco Dec. 1969 1.2 3 3.6 Jan. 15, 1970 reparation Unesco/FAO Feb./Mar. 1970 5.6 6 30.4 - ppraisal Bank Group Sept./Oct. '70 4.0 5 20.0 May 1971 ost-Appraisal Bank Group Mar. 1971 1.0 1 1.0 Apr. 1971 Total 83.4 upervision 1 IDA Jan. 1972 1.2 2 2.4 Mar. 28, 1972 2 IDA Oct. 1972 1.2 1 1.2 Nov. 28, 1972 3 IDA May 1973 1.4 2 2.8 June 28, 1973 4 IDA Nov. 1973 0.2 1 0.2 Nov. 26, 1973 5 IDA Mar. 1974 1.0 1 1.0 May 6, 1974 6 IDA Oct. 1974 2.0 1 2.0 Nov. 15, 1974 7 IDA Mar. 1975 1.0 1 1.0 Apr. 8, 1975 8 IDA Oct. 1975 1.8 2 3.6 Nov. 10, 1975 9 IDA May 1976 0.4 2 0.8 July 15, 1976 Total 15.0 ompletion IDA Oct. 1976 2.0 4 8.0 Apr. 18, 1977 CURRENCY EXCHANGE RATE ame of Currency (Abbreviation) CFA Franc (CFA Fr.) ppraisal Year Average Exchange Rate US$1 = 277.71 CFAF ntervening Years Average US$1 = 225.60 CFAF ompletion Year Average US$1 = 238.98 CFAF PER STUDENT COSTS Appraisal Expectation Actual iguinchor Agricultural School less than $900 $3,200 PROJECT PERFORMANCE AUDIT BASIC DATA SHEET (Cont'd.) ALLOCATION OF CREDIT PROCEEDS Original Allocation Revision Revision Category June 1971 December 1973 June 1975 Actual Disbursementli US$ US$ US$ US$ I. Equipment, Tools & Furniture 825,000 615,000 831,000 805,188.45 II. Civil Works 570,000 570,000 795,400 812,389.99 III. Consultant Services 90,000 262,000 145,800 162,550.15 IV. Fisheries Training Expert 20,000 20,000 15,600 15,542.00 V. Operational Costs of Project Unit, in- cluding Salaries of Project Archi- tect & Accountant 200,000 200,000 200,000 199,999.46 VI. Scholarships -- 12,000 12,000 -- VII. Unallocated 295,000 321,000 200 -- Cancelled -- -- -- 4,329.95 Total disbursed -- -- (1,995,670.05) 2,000,000 2,000,000 2,000,000 2,000,000.00 1/ Fully disbursed March 31, 1978  PROJECT PERFORMANCE AUDIT REPORT SENEGAL FIRST EDUCATION PROJECT (CREDIT 253-SE) HIGHLIGHTS The First Education Project in Senegal (Credit 253-SE), signed in June 1971) provided a credit of US$2.0 million to assist in improving a University Institute of Technology in Dakar by providing new buildings and equipment, rehabilitating two secondary technical schools and one agricultural technician school, and equipping a merchant marine school. By March 1978, the credit proceeds had been fully disbursed with the ex- ception of the sum of US$4,000 which was cancelled. Project objectives have generally been achieved, but the follow- ing minor problems were encountered - (a) because of a cost overrun-on civil works the equipping of the merchant marine school was deferred to the Second Education Project (para. 18), (b) the equipment for the work- shops of one of the secondary technical schools was insufficient to permit practical work (para. 19), (c) the considerable decline in enroll- ment at the agricultural school because of declining opportunities for public service employment (para. 38) and (d) the lower than expected student:teacher ratio at the University Institute of Technology and the agricultural school (paras. 32, 38). In some measure the cost overrun was due to delays in achieving Bank/Borrower agreement on architectural designs. Other points of special interest are: (a) the indispensability of thorough sector work and project identification and preparation especially in regard to the first educational lending operation in a country (paras. 10-14); (b) the risks of precipitate involvement in educational re- form (paras. 2, 3, 14); (c) the protracted disagreement between IDA and the Borrower on the architectural designs (paras. 15-17, PCR, paras. 2.01-2.07, 2.15-2.23); (d) IDA's failure to monitor the implementation of all aspects of the project (paras. 27, 28), and (e) the need to review what is required for the efficient future operation of two project schools in the light of their high recurrent cost per student and Senegal's emerging needs and resources (paras. 36, 38).  PROJECT PERFORMANCE AUDIT MEMORANDUM SENEGAL FIRST EDUCATION PROJECT (CREDIT 253-SE) I. Project Background 1. When the possibility of financing education projects in French- speaking West Africa was first discussed between Unesco and the Bank in 1966, the Bank indicated its willingness to consider education projects in Senegal, especially those contributing to increased agricultural productivity, but noted that strict limitations on their scope would be needed in view of the government's already tight recurrent budget. Consequently, a joint Bank/Unesco/FAO reconnaissance mission visited Senegal in January 1967. 2. This mission, after a stay of less than two weeks, endorsed a pro- ject identified by Senegal, with an estimated total cost of US$8.2 million, consisting of: (i) five lyceesl/ (3 new and 2 replacements) together with some boarding and staff housing; (ii) an upper cycle secondary agricultural school and a post- secondary agricultural school; (iii) post-secondary technical education (industrial) and, (iv) secondary technical education for girls. 3. Three years later and after four more missions had visited Senegal, the government prepared with the assistance of a Unesco/FAO project prepara- tion team a credit application seeking assistance towards: I. constructing and equipping: (i) nine lower secondary schools; (ii) a teacher training practice school; (iii) a pedagogical research center; (iv) a female technical teacher-training institute, a teacher- training institute and a University Institute of Technology (all with boarding facilities); (v) a center of educational radio and (vi) an extension of the school for agricultural extension workers and equipping a Merchant Marine Training School (after a re- organization study). 1/ Secondary schools with both lower (Grades 7-10) and upper (Grades 11-13) cycles. - 2 - II. construction of 20 staff houses. III. equipment for: (i) a secondary teacher-training institute; (ii) two technical lycees; (iii) a technical teacher training school; (iv) two educational radio centers; and (v) transport and teaching aids for farmer training. IV. loans to young farmers. 4. The appraisal mission visited Senegal in September/October 1970 and found that the Government had not accepted the idea of diversification of the lower secondary curriculum on which 50% of the proposed project was based. Two senior Bank Group officials visited Senegal to discuss the matter with the President of Senegal and other officials. The government was informed that general secondary schools of the traditional type would not be included in the project and consequently withdrew the nine lower secondary schools from the application./ The appraisal mission held that much of the remainder of the project was unsuited for IDA financing because of inadequate preparation and planning, the lack of clear and coordinated policies and because of insufficient economic or educational need. However, the mission felt that five or six of the proposed project items would not be affected by the proposed reforms (if these reforms were approved at a later stage) and that these should be proceeded with because there was an urgent need to make the school system more responsive to Senegal's economic and social requirements in the light of: (i) the continuous growth in the rural exodus which was causing increasingly difficult problems of employment in urban areas, and (ii) the skills required in the modern sector for the progressive replacement of expatriates. These items were thus concerned with rehabilitating existing facilities and replacing obsolete equipment to improve the quality of technician training for industry, agriculture and commercial fishing and replace foreign personnel. 1/ Useful dialogue between Senegal and the Bank Group on this reform con- tinued, however, and the Second Education Project included some elements of the reform. 5. The reformulated project now included: (a) constructing, equipping and furnishing some of the buildings needed for a new university institute of technology in Dakar (IUT) (US$1.4 million)l/ (b) rehabilitating, re-equipping and furnishing the Delafosse and Peytavin technical lycees and some construction (including staff housing), equipment and furniture for the Agricultural Technician School in Ziguinchor (US$0.4 million); (c) equipping (US$0.2 million) the Merchant Marine School at Dakar, after a study (US$0.1 million) of its reorganization, including the preparation of a training program, courses of study and lists of equipment and the establishment of entrance requirements and (d) operational costs of the project implementation unit (US$0.2 million). The total cost of the project, including project administration and contingencies, was estimated at US$2.3 million. For the IUT, the project provided civil works and equipment for most of the teaching and administration buildings and FAC pro- vided the communal and boarding facilities. 6. Following a revision of anticipated manpower requirements for techni- cians in engineering and business administration carried out by Senegal, the latter requested the Association to increase the IUT's capacity. In effect, proposed enrollments increased from the originally appraised 300 to about 575. After review by an IDA mission in March 1971, the request was approved. As a result, the project cost increased to US$2.5 million, and the proposed credit from US$1.8 million to US$2.0 million. The Credit Agreement was signed on June 18, 1971 and became effective on November 30, 1971. 7. Under the Credit Agreement the Borrower was expected to: (a) establish a project implementation unit within the Ministry of Public Works to manage the project with a full-time architect (to act as director) and a full-time accountant; (b) employ a fishery training expert; (c) discontinue, by July 31, 1974, at the Louga School for Agri- cultural Agents, pre-service training of the kind offered at Ziguinchor; 1/ The French Government aid agency, Fonds d'Aide et de Cooperation (FAC) was providing the other buildings needed by the institute. (d) submit to the Association (i) prior to December 1971, for its approval, revised curricula for use in the IUT, and a proposal for enrollments in courses in industrial chemistry and food technology, together with a detailed economic justification of these, and (ii) prior to June 30, 1972, the report and recommendation including a new training program for the Merchant Marine School at Dakar, resulting from the study mentioned in para. 5(c) above; (e) ensure that, beginning with the academic year 1975/76, at least 800 places at the Delafosse lycee and at least 300 places at the Peytavin technical lycee would be re- served for upper secondary technical and vocational training; (f) ensure (i) the maintenance of an advisory board to advise on enrollments, training requirements and organization of courses at the IUT, comprising representatives of the IUT and of private industry and commerce and appropriate ministries and (ii) that the IUT continue to maintain employment records of its graduates for at least three years and (g) give priority, within the Borrower's program for obtaining teachers, to the staff needs of the project institutions. 8. Because of delays in selecting consultants to carry out the study of curricula at the Merchant Marine School in Dakar, the funds allocated for equipping the school were, with the Borrower's agreement, reallocated in October 1973 to the preparation of a second project and this second project (Credit 530-SE) subsequently included provision for equipping the Merchant Marine School. 9. With the exception of the equipping of the Merchant Marine School, the project has been completed; all of the covenants with one exception./ have been fulfilled; the project schools are in operation; the credit has been disbursed with the exception of a small balance of US$4,329.95 which has been cancelled. II. Principal Issues 1. Inefficiencies in Project Generation (a) The Time Taken to Process the Project 10. Delays, as the Senegalese officials have noted, have a price tag in 1/ See para. 37. - 5 - education. The period of project generation was not only unduly long (as the Borrower has noted), it reflected as well IDA's lack of experience in dealing with the sensitive area of education systems, in attempting to by- pass the necessary stages of thorough sector work and project identification. In April 1967, in reviewing the first reconnaissance mission report, Unesco drew attention to the hastiness of identification, indicated that some of the proposed project items in the form presented were not ready for preparation and urged the sending of an identification mission. However, IDA proceeded immediately to discuss with Senegal the decisions to be taken by the country relating to the objectives, capacity, curricula and courses in a technical institute and a center for the technical education of girls in order to prepare the way for a preparation mission. 11. A second Bank/Unesco reconnaissance mission visited Senegal in May 1968 and agreed that a project could not be defined before the end of 1968 and that future action would be determined only after IDA had received informa- tion that it required on the proposed educational reform. This was the first mention of IDA concern with the nature of educational reform in Senegal. 12. From this point onward, IDA's emphasis in assessing a possible project lay not solely in its possible contribution to economic development and manpower supply, but also in its contribution to the proposed educational reform in Senegal and on this basis a Unesco identification mission visited Senegal in May/June 1969. IDA was not satisfied with the project items proposed by this mission because it seemed to the Association that they had been selected only on the basis of priorities listed in the Senegal Educational Plan 1969-1973, rather than on the basis of the mission's evaluation of tbLe situation. 13. A third Bank/Unesco reconnaissance mission therefore went to Senegal in December 1969 and reported in January 1970. This report referred extensively to the reform without indicating that these were merely reform proposals. It was, therefore, immediately followed in February 1970, by a Unesco/FAO preparation mission which assisted the Borrower to prepare a loan request for US$7.4 million which was sent to IDA in March 1970 some three years after initial discussions on a project. However, this project, which IDA was preparing to appraise, proposed deep involvement in a reform effort which was still in an inchoate state../ 14. After appraisal, during which the general education element was deleted, the project took a shape more akin to the original lines developed between the government and the first (1967) reconnaissance mission with the exception of the general secondary schools (lycees). The completion report notes the lack of continuity in the staffing of the various missions (para. 4.07) which, as the Borrower observed, compounds the difficulties of project processing because each new specialist tended to impose new ideas upon the pro- ject. 1/ The reform proposals had been developed in the Ministry of Education in close consultation with Unesco. Despite the fact that the President's reservations about .this.reform had been expressed publicly in June 1970, neither the government nor Unesco had alerted IDA of this development. IDA remained under the impression that the reform had been accepted and sent its appraisal mission to Senegal in September 1970. - 6 - (b) Problems of Finalizing Agreement on Project Details 15. Some of the difficulties which surfaced during implementation had their roots in the project generation period. There was lengthy discussion during the implementation stage between IDA and the Borrower over the archi- tectural designs for the IUT. This arose particularly because a new ex- patriate director of the University Institute of Technology.accepted neither the authority of the Project Director nor the objectives, program and schedules of accommodation which had been agreed between the Borrower and IDA, This re- sulted in a delay of some 20 months on this item which comprises 83% of the total project cost and this generated a cost overrun as well (para. 24 and PCR, paras. 2.01-2.07, 2.15-2.23). 16. The completion mission noted that some difficulty arose partly from the need to secure harmony between the design of buildings provided by TAC and the design of project-supplied buildings (PCR, paras. 2.03-2.07). The former were under construction even before the designs for the project build- ings were completed. The FAC-financed buildings were much more expensive than those envisaged in the working papers prepared by the appraisal mission and discussed between IDA and the government during negotiations (PCR, para. 2.05). These working papers assumed that the IUT would be a technician (sub-professional) level institution (as agreed between IDA and the government) offering mainly a two-year post secondary course with limited provision for a one-year preliminary course ,and for short post-graduate courses. The new director of the IUT wished ultimately to prepare professional level persons (ingenieurs d'execution). The schedule of accommodation put forward by the government in February 1972 in- volved a relatively minor (15%) increase in space, mainly to provide for an ampitheater which had not been envisaged in the working papers and increased ablution areas. It is not clear how these additions related to any changes in the educational program but the perception of Bank officials was that these additional spaces were unwarranted and were an integral part of an intention to upgrade the institution to the middle and possibly higher professional levels; consequently, approval was withheld. Eventually the facilities pro- vided represented slight adjustments in the spaces originally included in the working papers (PCR, Annex 1) but the total space was approximately the same. However, valuable time had been lost with major cost consequences. 17. In retrospect, it seems possible that some of the difficulties arising from the IUT director's lack of cooperation with the project director and the discussions over the character and level of the institution for which project funding was provided might have been minimized if cognizance had been taken of the relatively autonomous status of the IUT and a Project Agreement had been concluded with it. As it was, too much was left to depend on working papers whose legal status was unclear. - 7 - 18. The terms of reference of the fishery expert, who was expected to conduct the study of the Merchant Marine School, were still being dis- cussed two years after credit signing when they should have been fully agreed prior to or during appraisal. The delay in finalizing these terms of reference eventually resulted in delayed recruitment of the expert and consequently deferment of the equipping of the Merchant Marine School to the Second Education Project (PCR, paras. 2.11-2.13). 19. In the case of the Peytavin lycee, the appraisal mission found that the existing equipment was obsolete, but for reasons which remain un- clear, it made inadequate provision for the equipment required to make Peytavin an effective institution (see also PCR, para. 3.25). This was unfortunate because of the importance attached by the appraisal mission to the Peytavin and Delafosse lycees as feeder schools for the IUT. 2. Physical Implementation and Costs 20. The project was implemented under a project unit established in the Ministry of Works, headed by the Director of Public Works and assisted by an expatriate architect. In general, this unit functioned effectively. However, the Borrower felt the need for (a) assistance in preparing equip- ment lists in the manner specified in the Bank/IDA guidelines, (b) greater freedom to make local purchases and (c) restricting purchases of equipment to dealers who guaranteed services to maintain the equipment. 21. The IUT buildings were completed with delays caused by differences over designs (para. 16) and by the main contractor's failure to adhere to the agreed, but ambitious, schedule of construction. Notwithstanding some functional weaknesses, the buildings are satisfactory. Construction was completed in May 1976 and the buildings handed over to the institute (PCR, paras. 2.03-2.07). The Borrower has noted that a difficult problem of maintenance exists for some of the sophisticated equipment installed in the IUT and that some consideration should be given to establishing regional (West Africa) services for such maintenance. 22. The civil works at the Peytavin and Delafosse technical lycees and the agricultural school were completed (Peytavin 13 months behind schedule and the agricultural school two months later) with simple, functional designs and good quality of construction (see also PCR, paras. 2.08 and 2.09). The Borrower has noted that some of the machinery delivered to the Peytavin school did not have all of the items of equipment needed for its proper functioning. 23. Equipment was not procured for the Merchant Marine School. The savings were reallocated to provide professional services to prepare a Second Education Project and later reallocated to meet cost overruns in regard to the IUT. Included in the reallocated sums was an amount of US$12,000 for a fellowship in educational planning; however, nowhere in the reports of IDA supervision missions was there any reference to the implementation of this item and no credit disbursements for this purpose were ever made. -8- 24. Despite the reduction in project scope, the total cost of the project was about US$3.6 million by comparison with an appraisal estimate of US$2.5 million. The Borrower financed the cost overrun. The VCR explains that this increase was occasioned partly by the dollar devaluation of about 23% during implementation. The appraisal mission had allowed in its costing 10% for physical contingencies and 10% for price escalation. In the case of the IUT, agreed additions to the building program accounted for about a 34% increase and price escalation accounted for about an 82% increase, Had there been no delay in approving architectural designs, the price escalation would have been about 54% (PCR, paras. 2.15-2.18). 3. Supervision by IDA 25. Field supervision by IDA was, in many respects, effective, reflect- ing due concern for economy and efficiency in physical implementation (CPCR, para. 4.09). However, supervision could have been improved especially to compensate for weaknesses in project preparation, essentially through better monitoring and reporting on implementation of each project item. 26. As the Borrower perceives it, the project was over-supervised and there tended to be excessive attention to details, exhausting demands b IDA staff and a disturbing lack of continuity of IDA mission personnel,- The Borrower has also complained of the amount of recourse to Washington which is required and would wish to see greater decision-making in the field whether by the project unit or by a Bank Group representative being posted in Dakar, In general, the architectural supervision from the desk in Washington was con- siderable. It would have been more advantageous and expeditious for more of the review of designs to have been conducted in the field and for supervision missions to have been sent during critical periods. If the Association's perception of the problem of the schedule of accommodation at the IUT was that of a change in educational objectives, a visit should have been made by a technical educator. Between May 1973 and March 1974, when the design problems of the IUT were still unresolved, the only visit made to Senegal was by a Bank architect who had a one-day stopover between planes. 27. The Peytavin school's workshop has never been adequately equipped and therefore, never been used (PCR, para. 3.25). The Association could have been more effective in indicating the need to include funds in the Second Education Pr ect to upgrade the stock of equipment originally intended for this school. 1/ Three architects were involved in visiting Senegal, one 1971-74, another 1974-76 and a third served on the completion mission. Four educators visited Senegal, one in January 1972, another in May 1973, a third in October 1975 and May 1976, and a fourth in connection with the completion mission. An economist also participated in the completion mission. In addition, other IDA personnel began visiting Senegal in January 1972 in connection with the Second Education Project. 2/ Tne equipment needs of the Peytavin school have been reviewed during the appraisal of the Third Education Project in June 1978. - 9 - 28. With regard to the decline in the situation regarding the agri- cultural school (para. 38), the supervision missions did not identify the serious problems and initiate dialogue with the Borrower on a reassessment of the role of the school in the training of agricultural workers for the economy as a whole. Similarly, the supervision reports are silent on the non-utilization of funds reallocated to train an educational planner (para. 23). III. Project Outcomes (a) Institute of Technology 29. The IUT was intended to help Senegal meet its need for skilled man- power for industry and upper and middle-level technical staff to replace ex- patriates and fill new jobs as industry developed. The manufacturing sector of the economy of Senegal contributed 15% to the value of GDP, but was dominated by foreign ownership and management, with expatriates occupying almost all management positions and about two-thirds of middle management and technical posts. At the time of the completion mission's visit (October 1976), the IUT was only just beginning to move into its new facilities. It was, therefore, too early to evaluate the impact of the new project facilities on educational effectiveness. Nevertheless, the PCR (paras. 3.12-3.19) does attempt a useful assessment of the employment prospects for IUT graduates and of employers' views on the graduates' suitability. 30. The completion report notes the courses offered at the Institute and the abandonment of the original idea of a twelve-week post graduation course (because employers were unwilling to release staff for such a long period) in favor of a one-year post-graduation course for senior technician training (paras. 3.05, 3.06). 31. The report also notes the difficulties of the staffing situation in which French technical assistance personnel, many of them inexperienced, comprised 85% of the total of 68 staff. Salary scales in the civil service are low by comparison with the private sector salaries, making it difficult to attract industrially experienced Senegalese into teaching to replace the expatriates (para. 3.07). The likelihood of this difficulty was recognized at appraisal; it was therefore accepted that the IUT should be staffed by a core of full-time personnel assisted by part-time personnel released by industry, thus.keeping current costs to a minimum. It is clear, in retrospect, that the institute's development under the project should have been supported by (i) a vigorous staff development plan covering fellowships for any necessary training abroad including industrial experience, and (ii) an undertaking regard- ing the provision of such terms and conditions of service of staff as would attract them to and retain them in the institute. The difficulties of student recruitment are also well discussed in the completion report (paras. 3.08-3.09, 3.26, 4.04-4.05). These difficulties highlight the need for greater attention to have been devoted to the strengthening of the main feeder schools (the secondary technical schools). 32. The completion report also notes that in 1975 there were 451 students enrolled by comparison with a target of 565 but that these were fragmented into 15 specializations (PCR, Annex 11) which implies that some classes are - 10 - of uneconomic size. One way around this difficulty would be to offer some specializations only in alternate years. Sixty-eight full-time and 70 part-time teachers are employed (PCR, Annex 15) compared with the appraisal mission's estimate of about 40 full-time equivalent staff. Instead of the student/teacher ratio of about 14 to 1 envisaged at appraisal, the actual student/teacher ratio is less than 7 to 1 even taking no account of the part- time teachers. If four part-time teachers are regarded as the equivalent of one full-time, the student/teacher ratio is only 5.3 to 1. Hence it is not surprising that the recurrent costs per student in the institute are higher than average university student costs in Dakar (PCR, para. 3.20).!/ The IUT officials attribute the very low enrollment of women to the reluctance of employers to employ women (because of maternity risks). 33. Manpower data suggest a continuing shortage of foremen and technicians (especially in electro-mechanics, maintenance mechanics and civil engineering); in 1974, more than 1,300 expatriates were employed in these categories in Senegal. The first amendment to the Credit Agreement (October 17, 1973), provided for the introduction of industrial chemistry and food technology sections at the IUT which were not foreseen at appraisal. Graduates from these two sections have all found jobs but since demand appears to be satisfied, these programs are being reoriented - an illustra- tion of the flexibility which is one of the assets of the IUT. However, the IUT authorities need reliable manpower data and feel constrained by the tendency for the private sector to be conservative and the public sector to be over-optimistic in their forecasts of needs. 34. The PCR (para. 3.15) points out that the objective of establishing an advisory board for the IUT has only partially been achieved but that attempts to achieve a closer link between the IUT and employers are under way. The IUT considers the contribution of employers to have been valuable in assist- ing the Institute in achieving its objectives. 35. The completion mission interviewed a reasonable cross-section of the major employers (public and private), tapping views which were, of course, res- tricted to the operation of the Institute before the project's contribution. The mission found that in general, public sector employers were satisfied, but private employers were less enthusiastic, claiming that the training programs were too academic, insufficiently practical and too little directed towards preparing persons for work in an industrial environment.2 /Employers indicated that demand for the graduates of the post-graduate complementary course would not be strong, but it was unclear to the completion mission whether this was due to a precise assessment of the job market or to employers' disappointment with the training offered so far (PCR, paras. 3.14, 3.16-3.19, 4.01, 4.02). 36. The IUT has been provided under the project with suitable physical plant and continues to produce graduates, all of whom are in demand and find 1/ The Regional Office considers that a major factor contributing to high costs is the Senegalese policy of generous scholarship allowances - an issue which cannot be addressed by the IUT alone. 2/ A more favorable impression of the training programs was conveyed by employers in June 1978 after the project facilities had been in use for two years (Footnote PCR, para. 3.16), - 11 - employment. Its role in the future in producing upper level technical manpower which the country needs is clearly very important. The experience to date indicates that what is needed now is to review the overall development and consolidation needs of the IUT in a comprehensive integrated manner which takes into consideration (a) the long-term requirements for the kind of trained man- power that it can produce and the range of specialized courses needed to respond to these; (b) the development plans for its feeder schools; (c) the continued evaluation of the performance of its graduates; (d) its staff development requirements; (e) its high recurrent costs per student and the importance of economical class sizes; (f) the possibilities of participation by the private sector in its costs of operation and the potential supply of part- time teaching staff and (g) the strengthening of its links with employers.l/ (b) Agricultural and Secondary Technical Education 37. The Delafosse school met the enrollments stipulated under the pro- ject, but Peytavin, where equipment was lacking, did not (para. 7(e), PCR, para. 3.25). 38. The project provided for equipment and furniture for an agricultural technician school and construction of a general science laboratory and a staff house. The objectives were to make junior agricultural technician training more effective and less costly (US$900 per annum per student in 1970) and to contribute to the implementation of the Borrower's policy of reducing its reliance on scattered extension services in favor of the creation of a strengthened national service. The appraisal mission had noted the budgetary constraints on the production of agricultural staff and had correctly requested the closure of the Louga school and concentration of training at Ziguinchor. However, the discontinuance of the Louga Agricultural School has not resulted in more efficient utilization of teachers and facilities at Ziguinchor nor in a reduction in training costs per pupil/year to a more reasonable level. Enroll- ments at Ziguinchor have decreased between 1969 and 1974 from 110 to 48 because of the low absorptive capacity of the civil service to assimilate its graduates (who are all guaranteed civil service jobs). The extent of this financial stringency could not have been foreseen at appraisal. The consequences are serious: under-enrolled and over-staffed (staff/student ratio of 1:3), recurrent costs per student are now US$3,200 per annum (PCR, para. 3.29). The future functioning and role of this institution need to be re-evaluated in the light of the changing training'needs. IV. Conclusions 39. The Senegal First Education Project contained as its major item the University Institute of Technology which accounted for over 80% of the project's costs. Senegalese authorities consider that the project was well aligned with the country's educational priorities. The project has been generally successful in its main objective of providing good physical plant as a basis for improving the training of technical manpower. It is as yet too early to evaluate the educational impact of the project's contribution to 1/ The view of the Regional office is that the IUT and the Government are aware of most of the problems mentioned in this paragraph and that efforts are presently being made to resolve them. - 12 - the various schools assisted. Indications suggest that the University Institute of Technology and the Agricultural School would benefit from some review of their functioning, especially in the light of their high per student recurrent costs (paras. 36, 38). 40. The generation of the project took an unduly long time, partly because the Association relied on brief reconnaissance visits instead of thorough sector study and project identification and partly because the pro- ject proposals became prematurely involved in reform measures which had not yet taken final shape (paras. 10-14). The project suffered from the fact that project details which should have been finalized before credit signing were still being discussed during implementation (paras. 15-18). It suffered as well from insufficient supervision of some aspects of imple- mentation (paras. 27, 28) and cost overruns which resulted partly from delays in implementation (para. 24). 41. The lessons to be learned from experience with this project include; (a) the importance of having adequate sector work and well- advanced educational planning done in the country and all important government policy decisions taken as a basis for including major educational reform items in projects (paras. 2, 3, 14); (b) the risks inherent in trying to compress the project generation cycle in regard to the first educational lend- ing operation in the country (paras. 10-14); (c) the need for Project Agreements where autonomous educational institutions are involved (para. 17); (d) the importance of fully monitoring the implementation of all project components and the sector developments which affect them (paras. 27, 28); and (e) the value of periodic review of the role and functioning of training institutions in the light of changing needs (paras. 36, 38). ATTACHMENT Project Completion Report SENEGAL FIRST EDUCATION PROJECT Credit 253-SE Western Africa Projects Department Education Division April 18, 1977  Glossary of Terms used in the PCR BEPC: Brevet d'Etudes du Premier Cycle. Lower secondary school certificate taken after four years' secondary education. Baccalaureat: Examination conferring right to university entry which is taken at the end of the lyc6e course (three years after BEPC). Coll6ge Lower general secondary school offering a four year course d'Enseignement Moyen Lyc6e: Full secondary school offering a four-year lower secondary course followed by a three year upper secondary course. FAC: Fonds d'Aide et de Coop6ration. The French government external aid agency.  SENEGAL CREDIT 253-SE FIRST EDUCATION PROJECT COMPLETION REPORT SUMMARY AND RECOMMENDATIONS i. The genesis of the first education project in Senegal (Credit 253-SE) was a prolonged one, as it coincided with the time the Senegalese Government was formulating plans for a reform of the general education system. The ori- ginal Government 'request comprised a long list of different components, half of which concerned lower secondary general education. ii. When the appraisal mission arrived in the country in September 1970, it found that there were still numerous uncertainties about the proposed reform, particularly at the lower secondary level. As a result, the general education component could not be included in this project but was eventually financed under the second education project (Credit 530-SE, signed in February 1975). Only a small project in the field of technical and agricultural education remained, for which an IDA credit was extended in June 1971. The project consisted of the following components: (a) buildings and equipment for a post-secondary technology institute (Institut Universitaire de Technologie - IUT); (b) equipment for and rehabilitation of two technical schools (lycees) and one agricultural school, both at the upper secondary level; and (c) a reorganization study of the Merchant Marine School and equipment for the reorganized school. The project's main component, the IUT, was co-financed with FAC. The IDA credit financed the teaching facilities and the administration buildings, and FAC fi- nanced the communal and boarding facilities. iii. The project was designed to rehabilitate existing training facilities for skilled manpower for industry, agriculture and fishing, and to provide the expanded facilities needed to train middle level technical staff. iv. As it took a long time to recruit a consultant for the reorganization study of the Merchant Marine School, it was agreed to reallocate the funds for this item and to refinance it under the second education project. Therefore, the project finally consisted of only items (a) and (b) above. v. The IUT is attached to the University of Dakar; it has an industrial and a business department where future foremen and technicians are trained for - 11 - middle level positions in private and public enterprises. Students are re- cruited at the baccalaureate level, but there is a shortage of qualified tech- nical baccalaureates. In 1973, a one-year complementary course for training senior technicians was started. Students for this course are recruited from among graduates of the normal IUT course, about half of them directly and the others after they have had two years' experience in business or industry. So far, employers have not been involved in the organization of this complementary course with respect to recruitment procedures and the content of the training programs. One difficulty is that admission to the course is decided by the IUT and sometimes this interferes with the promotion policies of the particular en- terprise. vi. Senegal still has a considerable need for technically trained personnel to fill shortages in middle level managerial jobs in modern sector industry and administration and to replace expatriate personnel. The IUT is the only insti- tution in the country with the potential to train this type of personnel. The project's main component was therefore well conceived in terms of Senegal's man- power needs. While private and public sector employers interviewed by the com- pletion mission made a number of suggestions for improving the IUT programs, they nonetheless appreciate the training given by the Institute. vii. The curricula for the IUT courses were revised as stipulated in the Credit Agreement (4.02 b(ii)) and accepted by IDA with minor modifications. Several of the employers whom the mission interviewed think that the training programs are still not sufficiently practical. One reason for this might be that the teaching staff comprises a considerable proportion of volunteers with little industrial experience. viii. The appraisal mission rightly recognized that it would be essential for the IUT to establish good relations with the modern sector employers. Al- though an advisory board composed of representatives of local industrial and commercial enterprises and of the participating ministries was established in accordance with the Credit Agreement (4.04 a(i)), contacts between the IUT and the business community have been very limited. Attempts are now being made to reverse this trend. ix. The recurrent cost per student is about $3,400 per year. An important part of these very high costs is probably unavoidable in view of the small size of Senegal's modern sector and the resulting fragmented demand for specialized personnel. The recurrent costs are therefore heavy, and France up to now has subsidized the operational costs and paid the salaries of technical assistance teachers. x. The small technical school component was implemented without major problems. It was, however, too small to have a significant impact on the num- ber or quality of the technical baccalaureates. One of the two project tech- nical schools could not recruit enough pupils to meet the enrollment targets indicated in the Credit Agreement (4.03). The workshop constructed in Lyc6e - iii - Peytavin in St. Louis has never been used since equipment has not been provided. xi. The agricultural school component was implemented efficiently. How- ever, this school for training junior agricultural technicians is presently se- riously under-enrolled despite the fact that a similar school was closed as agreed in the Credit Agreement (4.02 b(i)). The reason for this situation is that the agricultural school recruits only for civil service employment, where the number of job openings is limited. xii. The physical implementation of the project was seriously delayed due to a difference of opinion between IDA and the Government-appointed Coordinating Committee over the design of the buildings for the University Technology Insti- tute. Consequently, it took the consulting architects 16 months --more than double the normal time-- to produce acceptable sketch drawings. The additional inflationary cost overruns caused by this delay were considerable. The financial problems of the project were compounded by the effect of the devaluation of the dollar by 23% during the project implementation. Instead of a total project cost of $2.5 million as estimated at appraisal, the actual total cost was about $3.6 million. The Government financed this deficit. xiii. The specific covenants of the Credit Agreement were well conceived and supportive of the objectives of the project. With one exception, detailed in Annex 3, they were fulfilled. Recommendations xiv. The recommendations of this report are set out below. They should be discussed with the Government in the context of the Bankis education sector work and be taken under consideration in the preparation of related components of future projects. (a) The University Technology Institute should continue its attempt to establish closer relationships with employers in order to develop more practical training programs that reflect the level of skills that the employers need. (b) It would be advisable for the Institute to attempt to place the diplo- ma students as apprentices for some time in commercial and industrial enterprises, under the supervision of part-time teachers from the local business community. (c) It would be advantageous to increase the number of IUT staff members with industrial experience; moreover, the program for training Senegalese teachers should be reinforced. (d) The direct recruitment of diploma course students for the complementary senior technician training should be reconsidered and an attempt made to involve employers more in the organization of and recruitment for these courses. - iv - (e) To what extent and in what form employers could contribute to the financing of the IUT should be examined. It would be useful to exa- mine this possibility in conjunction with the more general problem of the financing of technical/vocational education and training. (f) An attempt should be made to raise the level of the technical bacca- laureates and to free the technical secondary school of its stigma as a second best choice, by improving facilities and equipment and esta- blishing an adequate system of counseling and guidance. Manpower ana- lyses should determine to what extent an increased output of technical baccalaureates would be desirable. (g) The Bank should.explore with the Government the possibility of financing equipment for the presently unused workshop in Lyc6e Peytavin. (h) Decisions on the future development of agricultural training should be based on a survey of sectoral manpower and training needs. The Ministry of Education should in this context consider allowing the school for junior agricultural technicians to also recruit for non- civil service employment and to orient the training toward the needs of development corporations. (i) To preclude lengthy discussions on design specifications and conse- quent delays, it might be useful to provide a detailed architect's brief as early as possible in the project cycle. This brief should indicate the criteria for comfort, main conditions of space utili- zation, building characteristics, and cost limits. If co-financing is involved, the brief should be agreed with the Government and the co-financer. I. PROJECT BACKGROUND General 1.01 The first Bank Group education project in Senegal, Credit 253-SE, signed on June 18, 1971, provided $2.0 million to assist the Government in expanding and improving technical and agricultural education. The project is expected to be fully disbursed by mid-May 1977. 1.02 An IDA completion mission was in the country for varying periods between October 10 and 30, 1976, and was composed of Messrs. M. J. Wilson (general educator and mission leader), A. M. Verspoor (economist), G. Motel (technical educator/consultant) and R. Aujame (architect, Unesco/IBRD Coope- rative Program). Meetings were held with senior staff of the Ministry of Edu- cation and the Ministry of Higher Education. All project institutions were visited, along with most of the important enterprises in the Cap-Vert Region. The mission interviewed employers and management of these enterprises, as well as graduates of the University Technology Institute (IUT), the largest compo- nent of the project. The Education System 1.03 The Senegalese education system is modeled after the French system and instruction at all levels is in French. Primary education is of six years' duration and presently reaches about one-third of the children of school age. The secondary cycle comprises an upper cycle and a lower cycle. Higher edu- cation, of two to six years' duration, is provided at the University of Dakar and its affiliated institutions. Public education is free and there is a considerable excess demand for places in secondary schools. The lyc6e is the elite secondary establishment, offering a full seven-year course with a diver- sified curriculum in the upper cycle. There are two technical lyc6es, one in Dakar and the other in St. Louis, offering courses with specialization in eco- nomics, commercial techniques, mathematics and technology. At present, 50% of the lyc6e students take technical and science subjects. The lower secondary cycle leads to the BEPC (Brevet d'etudes du premier cycle) and the upper se- condary cycle leads to the baccalaureate, which gives access to higher education. The students who have obtained the baccalaureate are all being assigned to an institution of higher education by the "Commission d'Orientation". l.04 In the first years after independence, the education system expanded rapidly at all levels. In the second half of the sixties and particularly in recent years, the rate of growth slowed and now barely exceeds the growth of the school age population. The proportion of the national budget allocated to education and training increased considerably until 1970, when it stabilized at 26%. The Government has decided that this percentage will not be allowed to in- crease and has adopted a policy of limited enrollment growth. Consequently, there will be little room for expansion or qualitative improvements in the formal system that require important additional funds. Delivering a basic education - A.2 - package to larger groups of the population will require shifting funds from the upper secondary and higher education institutions to, in particular, primary level institutions. 1.05 Formal agricultural training for junior technicians is provided in four small schools. The entrance requirement is the BEPC, and the length of the course was recently increased to three years to include more practical training. The schools train exclusively for the needs of the civil service. Advanced agricultural education takes place at the National School for Rural Staff Training (Ecole Nationale des Cadres Ruraux). The Project 1.06 The first Bank Group education reconnaissance mission visited Senegal in January 1967 and outlined a project with technical, agricultural and general education components, at an estimated cost of $8.2 million. On several occasions during subsequent IDA and Unesco missions, the Government's plans for a ref.orm of lower secondary education were discussed. By December 1969, the reform proposals appeared to be firm and included: (a) the channeling of 80% of the primary school leavers into a three- or four-year course of practical rural training; (b) the channeling of the remaining 20% into lower secondary schools which would offer a three- or four-year course emphasizing science and technology training. The Bank Group looked favorably upon these reform proposals. 1.07 In February 1970, a Unesco mission assisted the Government in pre- paring the official request for Bank Group financing of an education project which included the following components: I. Construction and equipping of: US dollars 1. Nine lower secondary schools 2,819,000 2. Teacher training practice school 179,000 3. Pedagogical Research Centers (INEADE) 506,000 4. Female Technical Teacher Training Institute 297,000 5. Conversion of the Merchant Marine School 1,132,000 6. University Institute of Technology 370,000 7. Fisheries Training School 156,000 8. Expansion of Agricultural Extension Workers School 82,000 9. Center for Educational Radio 114,000 II. Construction and equipping of boarding facilities for items 4, 5 and 7 above 58,000 - A.3 - III. Construction of 20 staff houses 24,000 IV. Equipment for: 1. Secondary Teacher Training Institute 22,000 2. Technical Lycee Delafosse 137,000 3. Technical Lycee Peytavin 36,000 4. Technical Teacher Training School 5,000 5. Two educational Radio Centers 70,000 6. Transport and teaching aids for farmer training 707,000 V. Loans to young farmers 451,000 TOTAL 7,385,000 About 50% of the proposed project was in the field of general education. 1.08 In September 1970, an IDA mission visited Senegal to appraise this project. The reform proposals for lower secondary education, however, had not been finalized and were still being discussed within the Government; moreover, a commission had been appointed to prepare a reform of technical education. It became clear that the reform plans for lower secondary education could not be implemented in line with the project timetable. The Government and IDA there- fore agreed on a limited project consisting of technical and agricultural edu- cation components which did not directly relate to the reform plans at the lower secondary level. The general education components were postponed until the Senegalese Government had finalized its position on the education reform. 1.09 The project recommended by the appraisal mission aimed at the reha- bilitation of existing training facilities for skilled manpower for industry, agriculture and fishing and the expansion of technical training facilities for middle level staff, in order to.replace modern sector non-Senegalese staff and to fill new positions with qualified local staff. 1.10 Specifically, the project includes: (a) construction and equipping of a post-secondary technology institute in Dakar ($1.4 million); (b) re-equipping and rehabilitation of buildings of the Lyc6es Delafosse and Peytavin and the agricultural technician school in Ziguinchor (0.4 million); and (c) equipping of the Merchant Marine School following a study to reor- ganize the training of middle level staff for the fishing industry ($0.3 million). The total cost of these project items, together with project administration and - A.4 - contingencies, was estimated at $2.3 million. 1.11 Civil works and equipment for the IUT were co-financed with FAC, with IDA financing most of the teaching and administration buildings and FAC the communal and boarding facilities. 1.12 After appraisal, following a revision of forecasted manpower needs, the Government requested that IDA increase the capacity of the proposed Tech- nology Institute. This request was reviewed in the field (March 1971) and approved. As a result, the project cost rose to $2.5 million and the proposed credit from $1.8 million to $2.0 million. The Credit Agreement was signed on June 18, 1971, and Credit 253-SE became effective on November 30, 1971. II. PHYSICAL IMPLEMENTATION General Observations 2.01 Annex 1 provides an overview of planned and actual construction under the project and Annex 2 a comparison of original implementation schedules and actual implementation. Implementation of the main project component, the IUT, encountered difficulties that led to a delay in project completion of more than 20 months, representing a time overrun of 40%. The basic difficulty con- cerned the design and was caused by a difference of views on standards and costs between IDA and the then Director of the IUT. As a consequence, the architects took 16 months, double the normal time, to produce a sketch design which was acceptable to both IDA and the Government. Further delays occurred during the construction phase when the main contractor did not keep up with the agreed construction schedule. 2.02 An architectural consulting firm for the IUT civil works had already been appointed by the Government on a FAC contract before the credit became effective. As the firm was well established in Dakar and had local experience as well as a good reputation., IDA agreed to its also being employed for the IDA- financed buildings. Thus, one firm was responsible for-the architectural design work and site supervision of all the civil works components of the IUT complex. Its performance in delivering complete and sufficiently detailed drawings and bidding documents was adequate, but site supervision was too infrequent. University Technology Institute (IUT) 2.03 This most important element of the project represented 83% of the total project cost. A sketch plan for the IUT, presented to the first supervision mission in January 1972, was not in accordance with the schedules of accommodation agreed during negotiations, as the plan (a) exceeded the gross area and costs by 15%, and (b) included as an additional item a 250-place amphitheater. IDA re- quested that the Government revert to the previously agreed standards, but it took nearly a year and a half to reach agreement on the designs. The basic issue con- cerned the standards of the construction and accommodations to be provided: IDA asked for economical building standards and simplification of the fixed equipment, while the Director of the IUT desired high "university" standards for construction and equipment. -A.5, 2.04 The main difficulty in resolving these issues was that the IUT officials: (a) resisted the authority of the Project Unit in the implementation of this project item; (b) complicated the briefing of the architects by advising them to pro- duce drawings which did not conform to the standards agreed during negotiations; and (c) did not comply with agreements reached during supervision missions between IDA officials and the Government-appointed Coordinating Com- mittee on which the IUT officials were represented. 2.05 While these design issues were being discussed by IDA and the IUT officials, the elements of the project financed by FAC moved ahead and site work had begun even before agreement on the design of teaching facilities had been reached. Therefore, to obtain architectural unity, the design features and the general proportions of the FAC-financed buildings were followed; this resulted in additional costs since FAC had accepted the building standards pro- posed by the IUT officials. 2.06 These factors resulte4 in a less than optimal compromise solution with a number of obvious shortcomings, such as insufficient ventilation in the laboratory buildings, distwrbing acoustics in the lecture rooms, and an unsa- tisfactory layout in the library. Notwithstanding these functional weaknesses, the general layout of the IUT complex is quite successful and compares favorably with other universities. The buildings provide ample opportunities for adequate practical and theoretical training. 2.07 The contract was awarded to the lowest bidder, a local contractor for whom a job of the size of the IUT represented the limit of his capacity. Site development and civil works encountered some initial difficulties, mainly due to poor performance by the contractor for the substructure. These weaknesses were exacerbated by insufficient site supervision and follow-up action by the archi- tectural consultants. Intervention by IDA supervision missions was successful: the resulting more intensive site supervision produced good results and the quality of workmanship was adequate. By May 1976, the construction work on the IUT was completed and hande4 over to the Institute. Technical Lyc6e Andr6 Peytavin 2.08 For this component the project financed the construction of facilities, located in one block, consisting of four classrooms and a workshop along a corri- dor. Each classroom has an adjacent storeroom of about 6 m2. The construction was handed over on March 1, 1975 (about 13 months behind schedule). The quality - A.6 - of construction is above average local standards. Technical Lyc6e Delafosse 2.09 This component involved some minor modernization of workshops. The total cost was about $17,000. The work was executed satisfactorily and handed over to the school on October 26, 1973. Agricultural School in Ziguinchor 2.10 The construction consisted mostly of the extension of the science laboratory, the.roo,f structure covering the laundry',area, and a new residence for the Director. The design is-simple and functional, and the quality of cons- truction adequate. The-buildings were handed-over to the school on August 15, 1974, two months behind schedule. A complete water supply network, including a deep well, a pumprand an-elevated tank, was ad4ded to,this.component. Merchant Marine School (Ecole Nationale des Formations Maritimes - ENFM) 2.11 In view of the, anticipated expansion of the Senegalese fishing fleet, the project included funds for-a reorganization study of,the Merchant Marine School which would determine: (a) the necessary reorganizational needs; (b) the curriculum of the school; and (c) the financial implications of a reorganization. Financing of instructional equipment was also included in the project, contingent upon satisfactory completion of this study. 2.12 The consultant's report recommended only minor'changes in the school's programs as they had been developed between 1970 and 1974, and emphasized the need to (a) increase the recruitment-of candidates :for the fisheries section, (b) make building renovations (not-foreseenr at_appraisal), and (c) procure equip- ment for practical training at the school. 2.13 The Credit Agreement,included $210,000 for equipping the Merchant Marine School. In view of the delay in'recruiting the fisheries expert, the funds for the equipment for this school were all reallocated to the "Professional Services" category (first Amendment to the Credit Agreement) in the preparation of the second education project. Funds for equipping the Merchant Marine School were included in the second project. Equipment 2.14 Annex 3 provides a comparison between estimated and actual costs of furniture and equipment provided under the project. Most equipment and furniture financed under the project were procured in accordance with Bank/IDA guidelines for international competitive bidding. Some smaller items were procured locally. The procedures worked satisfactorily and the equipment was delivered on time. - A.7 - Project Costs 2.15 The following table compares the actual costs of the various project components with the appraisal estimates. These estimates provided 17% of the project base costs for contingencies, split evenly between price escalation and physical increases. Actual costs exceeded the appraisal base cost estimates by 36%. Comparison of Appraisal Cost Estimates and Actual Costs by Project Component (CFAF '000) Project Component Appraisal Estimates Actual % 1970 Including Costs Cost prices contingencies Difference 1/ University Institute of Techxology 350,099 417,116 631,813 + 80. Lycee Andre Peytavin 34,240 40,582 37,345 + 9 Lycee Maurice Delafosse 55,846 65,621 52,243 - 6 Ecole d'Agriculture, 26,400 31,559 32,196 + 22 Ziguinchor Ecole Nationale de 69,428 80,683 3,800 - 94 Formation Maritime Sub-Total 536,013 635,561 757,397 + 41 Project Administration 55,542 55,542 45,120 - 19 TOTAL 591,555 691,103 802,517 + 36 2.16 The increase in the project cost was caused almost entirely by cost overruns on the civil works at the IUT. The appraisal cost estimate was CFAF 207,072,000, compared with an actual cost of CFAF 458,795,000. This 122% in- crease in the cost of civil works for the IUT can be attributed to the following factors: 1/ 5 difference between appraisal estimates excluding contingencies and actual costs. See also Annexes 4 and 5. - A.8 - (a) general inflation: between June 1970 (price base of the appraisal estimates) and June 1976, when the work was provisionally handed over, a general increase in the construction costs of 101% occurred; as a consequence, the costs of the IUT civil works increased by an es- timated CFAF 170 million, representing 82% of the appraisal cost esti- mates (appraisal estimate provision - 12%); (b) additions to the initially conceived building program, requested by the IUT's Coordinating Committee, account for a cost increase of about 34%, or CFAF 70 million compared to an appraisal estimate of 10% for such contingencies. 2.17 If the construction work for the IUT had gone according to schedule, the work would have been completed by mid-1974 and the effects of inflation on the construction costs would have been limited to approximately 54% of the base costs instead of the actual 82% increase. Thus, the cost of the delay at the design stage can be estimated at CFAF 58 million ($260,000). 2.18 The financial problems encountered during project implementation were compounded by the devaluation of the US dollar during the implementation period from CFAF 277.71 to an average of CFAF 225.60 per dollar. Annex 4 shows that the total project costs in dollars increased from the appraisal estimate of $2.5 million to $3.6 million; more than half ($632,000) is attributable to the effect of the dollar devaluation. In terms of local currency, the value of the Credit was reduced from CFAF 555 million to CFAF 450 million. The Government's contribution increased from the appraisal estimate of CFAF 140 million to CFAF 350 million. Disbursements 2.19 Annexes 5, 6 and 7 show the Credit allocations to the categories set out in Schedule 1 of the Credit Agreement, the modifications caused by two amend- ments of Schedule 1 and the actual disbursement. The second amendment concerned a major reallocation of funds which had become necessary to finance part of the cost overruns on equipment and civil works for the IUT. The unallocated .funds ($321,000), plus $110,000 for professional services for preparation of the second education project, were reallocated to Category I - equipment, tools and furniture ($145,000) and to Category II - civil works ($185,000) to meet increased financial requirements of the IUT. 2.20 The project has not yet been fully disbursed. There remains an un- disbursed balance of $100,000 in the Credit which will be used for some small improvements in the buildings and the purchase of furniture for the IUT. 2.21 At appraisal, it was estimated that the Credit would finance approx- imately 80% of the total costs of the project. As a result of the cost overruns and the dollar devaluation, this percentage dropped to 53%. For civil works, the percentage was only 34. - A.9 - Project Management 2.22 The Project Unit was established within the Ministry of Public Works and headed by the Director of Public Works, assisted by an expatriate architect, an engineer and an accountant. The staffing was adequate and the Unit performed efficiently. Apart from some initial misunderstanding over the establishment of a "Caisse d'avance", no major problems occurred. The Project Unit had no control over the events that caused the delays in project implementation. Its location within the Ministry of Public Works had the advantage of making readily available that Ministry's experience with procurement issues, and consequently procurement problems were avoided. 2.23 It took some time before the Project Unit's authority in matters of project implementation was clearly understood and accepted by all the parties involved in the project, but when this was achieved the Unit's relationships with the Ministry of Education and the IUT Coordinating Committee were satisfactory. Communication.:with the Ministry of Education was good but concerned mainly tech- nical issues as the project had a large construction component. Experience with the second project indicates that, with an increased proportion of other com- ponents, inter-ministerial communication and coordination tend to become a proble and hence special remedial measures are required. III. THE PROJECT OUTCOMES General 3.01 The covenants contained in the Credit Agreement have (with one exception - the Lyc6e Peytavin) been fulfilled (Annex 8). The evaluation of the project outcomes will necessarily focus on the main project component, the IUT. At the time of the completion mission, the IUT was just starting to move into the new facilities and the equipment was being installed. It is likely that the new facilities will allow for increased attention to be given to practical training in the workshop and laboratory work. While a full evaluation of the project educational results is not yet possible, a review was made to determine to what extent the profile of the IUT graduates thus far trained meets employers' needs. 3.02 The mission visited most of the important enterprises in the Cap-Vert Region and held discussions with employers, the management of these enterprises, and IUT graduates employed by them. The main topics covered in the survey were: (a) the extent to which the IUT programs are adapted to employers' needs; (b) the usefulness of the graduates and their job motivation; (c) problems encountered in the complementary senior technician training; and (d) the short and middle term manpower needs of employers that could be met by the IUT. The scope of this survey is shown in Annex 9. - A.10 - University Technology Institute (IUT) 3.03 By supporting the IUT, the project aimed to help Senegal meet the need for middle level technical manpower. The Institute was to provide post-secondary sub-professional foremen and technician training in mechanical, electrical and civil engineering, industrial chemistry, food technology, and business studies. The graduates were to replace expatriate middle level staff and fill new positions as industry expanded. 3.04 The IUT was created in 1967 as an institute of the University of Dakar. The facilities were inadequate and, with FAC financing, temporary buildings were provided pending construction of the IDA-financed facilities. 3.05 At present, the Institute offers four types of courses: (a) a two-year diploma course leading to the university diploma in technology ("Dipl6me Universitaire de Technologie" - DUT); (b) a one-year complementary training course leading to either the senior technician diploma, "Ingenieur de Technologie Industrielle", or the advanced diploma in management,and administration, "Etudes Superieures d'Administration et de Gestion des Entreprises"; (c) upgrading courses for the personnel of local enterprises; and (d) a preparatory year for students who do not have the baccalaureate. 3.06 At appraisal, it had been envisaged that most of the students would also attend a 12-week course in their specialty during the first year after graduation. This plan proved impractical since employers would not release their personnel to participate for such a long period; hence the idea was abandoned. Instead, a complementary one-year course for senior technician training was created in 1973; its organization is shown in Annex-10. At present, 11% of the IUT graduates are admitted to the complementary course after two years of industrial experience (stream 1) and 9% of the graduates proceed directly to it (stream 2). 3.07 During the 1975/76 school year, the total teaching staff at the Ins- titute was 68; French technical assistance personnel comprised 85% of the total. Many of them are young volunteers doing national service ("coop&rants militaires") with little industrial experience. Senegalization of the staff will be a long- term process. Because of the comparatively low civil service salary scales, it probably will be difficult to recruit adequate numbers of Senegalese with industrial experience to teach at the IUT. At present, about 10 Senegalese are being trained in France; upon their return, they are expected to teach at the Institute. Some high-level staff of private and para-public sector enter- prises are serving as part-time teachers at the Institute; however, their involvement in the practical training is limited. 3.08 New students are recruited from among the baccalaureates assigned by a National Commission to higher education. The IUT recruits graduates from: - A.11 - (a) the technical lycees, with a technical or commercial baccalaureate; (b) general lycees with, in most cases, a mathematics or science bacca- laureate. In addition, a number of students without baccalaureates are recruited, after a special examination, from among the IUT preparatory year students. Although details are lacking, it seems that the best school results are being obtained by students from technical lyc6es with a technical baccalaureate. Unfortunately, it is difficult to recruit an adequate number of suitably qualified technical baccalaureates. 3.09 In view of the considerable wastage in a number of streams (Annex 11), there is a tendency toward stricter admission criteria; candidates with a clas- sical baccalaureate or with the secretarial/bookkeeping baccalaureate are no longer admitted. Problems are caused, however, by the diversity of the back- ground of the students. Since technical baccalaureates are mixed with general science baccalaureates, remedial courses varying with the students' background are necessary. 3.10 Annex 12 shows that, since 1976, 442 students have graduated from the IUT with a university diploma DUT. They have all found a job and the school keeps individual records of their employment history. The Institute, being responsible for placing the graduates, is sensitive to fluctuations in employers' demand and IUT streams are opened and closed accord- dingly. 3.11 The IUT was planned to have a capacity of approximately 550 students. Present enrollment is around 500 (Annex 13); provided that recruitment of adequately- qualified students is possible, the Institute will soon be operating at full capacity. Employment Prospects for IUT Graduates 3.12 Available manpower data reveal a great need for personnel at the fore- man/technician level. In 1974, there were still more than 1,300 expatriates employed at this level. In the modern economic sector the most apparent short- ages are in the fields of electro-mechanics, maintenance mechanics and civil engineering. At present, 100 students obtain the DUT in the IUT's industrial department every year and 40 in the business/commerce department. Although in some sections the graduates might face difficulty in obtaining employment (e.g., in chemical engineering), there is little doubt there are a sufficient number of job openings at the foreman/technician level. 3.13 During both appraisal and negotiations there were doubts about the economic justification for the industrial chemistry and food technology sections. Initially, these sections were not included in the project but accepted later in light of updated information, with the condition that disbursements would be subject to IDA's approval of enrollment and curricula proposals. This condition - A.12 - was fulfilled. Up to now, graduates from these sections have always found employment, mainly in the public sector. As it is now becoming more difficult to place them in appropriate employment, a reorientation of the programs is under consideration. 3.14 , Employment prospects are somewhat uncertain for senior technicians, the graduates of the complementary course. Few of the interviewed employers indicated important needs at this level, but it is not clear whether this is based on a realistic assessment of the situation or stems mainly from disap- pointment with the present training. Employers' Evaluation of the IUT 3.15 The appraisal report emphasizes the need to involve employers closely in the work of the IUT. However, the Board of the IUT has not been very effec- tive in this respect and only four of the 27 members are representatives of em- ployers. Attempts are now being made to reinforce the link between the Institute and employers. A small working committee of Board members has been created for this purpose and will also advise on program matters. In addition, one of the Institute's teachers has been specifically assigned to establish and maintain contacts with the private sector in particular. 3.16 The mission visited 16 enterprises and conducted interviews with their management. The reactions, particularly of the public sector employers, to the type of training the IUT is providing were generally positive. Management of the public sector enterprises considers that the IUT has brought about the possibility of having available for employment local supervisory staff with ade- quate technical training. Management of the private sector enterprises had a more critical attitude, possibly due to the fact that when the Institute was created the employers expected it to provide practical training directed to their need for adequately qualified foremen and technicians, so that they could comply with the Government's policy of Senegalization of middle level manpower. But the IUT training programs, according to a number of these employers, are too academic and not sufficiently practical, with insufficient emphasis on pre- paration for work in a productive environment..1/However, nearly all the employers interviewed stated that, although changes were necessary, the IUT was the most adequate institution in the country to cater to their qualitative and quantita- tive middle level manpower needs. 3.17 A major part of the employers' comments (particularly those in the private sector)concerns certain aspects of the complementary training program for senior technicians; namely that: (a) this training program was initiated by the University and does not re- flect employers' needs; (b) the skills and knowledge of the graduates are insufficient for the high-level functions they are expected to perform; in particular, the 1/ Visits to the IUT by Regional staff and interviews with major employers during the appraisal of the proposed third education project in June 1978 indicate that training programs have become much more practical and also that private sector employers are now largely satisfied with the quality of the IUT training programs. - A.13 - graduates who were recruited directly (stream 1).from the diploma course lack industrial experience; (c) the Institute's exclusive responsibility from stream 2 recruitment, interferes with the enterprises' internal promotion policies, under- mines the effort a particular enterprise might be making to integrate the DUT's into the enterprise, and takes away the best of the middle staff prematurely; (W) the complementary training program reinforces the tendency toward higher academic type of training at the diploma (DUT) level. A consequence of the employers' dissatisfaction is that students have to resign their post to participate in the course. 3.18 There seems to be a good reason to reorganize this complementary train- ing program for senior technicians, particularly with regard to the recruitment of students directly from the diploma course. The program probably could be made more adequate if direct recruitment were abandoned and participation in the pro- gram became part of an enterprises career development program for middle level technicians. The curriculum for the program should be determined jointly by the IUT staff and employers' representatives. 3.19 The employers' complaints about the Institute's curricula being too academic should also be taken seriously. Thus, the present efforts of the IUT management to start a dialogue with the business community are commendable. The creation of a working committee of Board members and the full-time appoint- ment of an experienced IUT staff member to be in charge of establishing and maintaining contacts with employers are important steps in bringing about a greater involvement of the business community in the IUT. This is particularly important in view of the fact that, as mentioned in para. 3.10, the Institute has to find employment for all its graduates and therefore is sensitive to fluctuations in employers' demand and is opening and closing streams accordingly. Recurrent Cost of the IUT 3.20 The annual recurrent cost to the Senegalese Government of operating the existing facilities of the IUT is CFAF 265 million. France pays the salaries of the French technical assistance teachers and subsidizes the operational costs (CFAF 60 million). Details are in Annex 14. If the entire teaching staff (Annex 15) were Senegalese and there were no recurrent cost subsidy, the total cost would in- crease to CFAF 425 million. Assuming an enrollment of 500 students,.this would result in an annual recurrent cost per student of CFAF 840,000, or $3,400. This is of course very high and considerably above the estimated unit costs of the University of Dakar; and moreover, the new facilities are likely to cause further recurrent cost increase. The main reason for the high recurrent costs per stu- dent is the high pupil/teacher ratio (6.5:1) and the high social costs (scholar- ships and deficit on the operation of boarding facilities), accounting for half of the total costs. - A.14 - 3.21 High unit costs are perhaps an unavoidable feature of an institution like the IUT in Senegal, where the modern sector is relatively small and hence the demand for qualified manpower is fragmented and in each specialization only a small number can be absorbed. This means that each section of the IUT can have only a small annual intake; therefore, since courses are already combined whenever possible, pupil/teacher ratios are low and the cost per student is high. The only room for savings seems to be in the area of social costs, i.e., boarding (students are now paying only 25% of the total boarding costs) and scholarships, where a more selective policy could possibly generate some savings. 3.22 The financial burden of operating the University and the IUT will be felt increasingly as the teaching staff is Senegalized and the budgetary support from France diminishes. While this is admittedly a long-term problem, a start should be made in determining under what circumstances and in what form employers could contribute to the future financing of the IUT. Such an investigation should preferably be part of an overall examination of the more general problem of the financing of technical/vocational education and training. Secondary Technical Education 3.23 The project provided some support for the two institutions for secon- dary technical education, to improve the quality of the technical training in secondary schools and meet the need for technicians appropriately qualified for employment or for higher studies. 3.24 To ensure satisfactory use of the equipment, the Government gave an assurance during negotiations that 800 places at the Lyc6e Delafosse and 300 places at the Lyc6e Peytavin would be reserved for the upper secondary cycle (grade 11-13). Annex 16 shows that the targets have been met for the Lyc6e Delafosse, but not for the Lyc6e Peytavin. 3.25 The workshop in this lyc6e financed under the project has never been used, as sufficient equipment has not been provided. The appraisal mission included in its estimates only a provision for small tools and furniture, and the effects of the dollar devaluation and the cost overruns on the IUT civil works made it impossible to finance the equipment from the Credit's contingency provision. The lack of equipment is possibly one of the reasons why the upper- cycle enrollment targets for the Lycee Peytavin have not been met. The Association should discuss urgently with the Government the complete equipping of this workshop. 3.26 It has not yet been possible to recruit a majority of the IUT students in the industrial department from the technical lycees, as was expected by the appraisal mission. Although 150 students in 1975 obtained a technical bacca- laureate and 189 in 1976, only 32 (20%) of the 125 students admitted to the in- dustrial department came from a technical lycee. The low percentage of recruits from the technical lyc6e is accounted for by the high academic achievement levels required for admission, which are more likely to be attained by students from the - A.15 - general lyc6e as they tend to be more competitive than those from the technical lycee, the second choice of the BEPC graduates. Agricultural School in Ziguinchor 3.27 The third project component concerned the training of junior agricul- tural technicians. The objective was to make this training more efficient and bring its unit cost down from the 1970 level of $900 a year... To achieve these objectives, it was intended that: (a) the curriculum would be revised and given a more practical bias; (b) the junior agricultural technician training center in Louga would be closed, with enrollments at the school in Ziguinchor expected to reach 120; and (c) the project would finance the construction of a general science labo- ratory and a staff house, plus the purchase of necessary farm tools and equipment. The duration of the course was originally two years, but starting in 1976/77 a third year has been added. Recruitment takes place at the BEPC level. 3.28 In spite of the closing of the Louga school, enrollments decreased between 1969 and 1976 from 110 to 48 because of the limited capacity of the civil service to absorb the graduates, all of whom are guaranteed employment. Although the curriculum has been revised to include more practical training, the preoccu- pation with training for civil service tasks has influenced the orientation of the training toward bureaucratic needs and away from field development work. 3.29 The school is thus not only under-enrolled, but with a staff/student ratio of 1:3, over-staffed as well. Per student recurrent costs have risen to $3,200 annually (considering only the budgetary allocations of the Ministry of National Education) -- more than three times the level the appraisal mission found too high. A lowering of the unit cost can only be envisaged when civil service recruitment increases or the school is allowed to recruit pupils for employment outside the civil service. Although detailed studies of the manpower needs in the agricultural sector are lacking, the Government's plans for develop- ment of the agricultural sector would seem to justify the existence and the ca- pacity of the school, provided that its training function is broadened to include needs of the para-public and possibly the private sectors. 3.30 As indicated in paras. 2.11-2.13 the Merchant Marine School has been reorganized and is included in the Second Education Project. Annex 17 shows the distribution of the present enrollment. IV. CONCLUSIONS 4.01 The main project component, the IUT, was well justified in terms of manpower needs. A Bank economic mission which recently visited Senegal concluded that shortages of middle level technical manpower will continue to persist in the near future. 'The IUT is the only institution in Senegal with the potential - A.16 - to provide this post-secondary technician training. The employers who were inter- viewed have, in general, a positive attitude toward the IUT. Nearly all stated that, although a number of changes were necessary, the IUT is the most adequate institution in the country to cater to the qualitative and quantitative middle level manpower needs of the ;odern sector. 4.02 Their criticism focused on two major issues: first, on the organi- zation and programs of the complementary training program for senior technicians ("Ing6nieurs de Technologie Industrielle"); and second, on the too academic orien- tation of the diploma courses, which,in the opinion of some employers,tend to pre- pare students for the complementary training rather than for work in an industrial production situation. The IUT management is attempting to start a dialogue with employers concerning these and other course-related matters. 4.03 It is perhaps unavoidable that the per student recurrent costs of the IUT are high, although there could be some room for achieving savings in the social costs. The modern sector in Senegal is relatively small and the total annual demand for technicians and foremen so fragmented among the various spe- cializations that pupil/teacher ratios are very low and diseconomics of scale are inevitable. There is not much that can be done about this, and the problem will only be resolved when the modern sector expands and the demand for each category of specialization becomes greater. 4.04 The available information suggests that the best school results are obtained by the students who have a technical baccalaureate. This justifies the project objective of supporting the technical lyc6es in order to improve the recruitment base for the IUT. However, it was perhaps overly optimistic to assume that this could be achieved with the relatively small improvements in the facilities and equipment that were financed under the project. It seems that, in the first place, a qualitative improvement in the level of students admitted to the second cycle of the technical lyc6e is needed; the technical lyc6e should not remain a place where students go who cannot secure a place in the general lyc6e. To achieve this improvement, a number of measures would be required, in- cluding qualitative improvements in the educational facilities and equipment and an adequately organized system of counselling and guidance of BEPC graduates. 4.05 The IUT is a well-managed institution. The Bank Group should continue to take an interest in its future development and be willing to provide support whenever appropriate. The IUT's business department could possibly play an important role with regard to developing an institution that could provide in- service training for managers of public and private sector enterprises. 4.06 The training of junior agricultural technicians is at present very costly. Due to the limited demand for civil service personnel, the training center for junior agricultural technicians, located in Ziguinchor, is seriously under-enrolled and the objective of making this type of training more efficient has not yet been achieved. It seems necessary that the Government base its decisions on future development of agricultural training on a survey of sectoral manpower and training needs, and that the Ministry of Education consider allowing the school to also recruit for non-civil service employment and to orient the training toward the needs of development corporations. - A.17 - 4.07 Examination of the difficulties encountered during the preparation and appraisal of the project illustrates the importance of a continuous dialogue with the Government on sector issues, particularly since plans for education re- form mature only gradually and generally are implemented slowly. The preparation and appraisal of the project might have been less difficult if there had been some continuity in the staffing of the various Bank Group missions; the compo- sition of those which visited Senegal was on every occasion completely different, and none of the IDA staff members on the appraisal mission had ever been to Senegal before. 4.08 The lengthy discussions on the designs for the IUT illustrate the problems that can occur if agreement on design issues cannot be reached. 4.09 IDA's performance during implementation was generally adequate. Its position with regard to the designs was reasonable and reflected a concern for economy and efficiency. The one major shortcoming was that between May 1973 and March 1974, while the discussions on the design issues were still going on, no supervision mission visited the country to discuss the problems with the national authorities and agree on a solution. 4.10 Some implementation problems were caused by the arrangements for parallel financing with FAC. Construction of the FAC-financed buildings had started before the designs for the IDA-financed facilities were completed. Be- cause of the need for architectural unity between the different parts of the complex, a number of expensive design features that were not envisaged by the appraisal mission had to be followed. This again underscores the importance of early agreement on building specifications and designs between all the parties, involved. 4.11 Project management performed efficiently. No major procurement prob- lems occurred, partly because the Project Unit was located within the Ministry of Public Works and the staff was familiar with procurement procedures. Communi- cation with other ministries was adequate, but no complex education issues arose during project implementation.  1:NILCAL, CREDIT NO. ;'3-m ANNEX I COMPARISON BETWEEN THE ARCHITECTURAL PROGRAM AND THE PROJECT SCHOOLS AS CONSTRUCTED Number Areas in Sqiiare Meters Type of Accouodation Program Constructed Program Constructed Present Use 1. University Institute of Technology,Dakar Academic and communal Classroom (90) - 1 - 119 Lecture room in tiers Classroom (50) - 3 - 196. Classrooms Classroom (30) 8 2 400 104 Classrooms Classroom (25) 12 8 505 310 Case study Drafting (30) 3 3 270 265 Drafting room Language Lab 3 3 135 116 Language Lab Collection Room - 1 - 21 Storage Elec. Tech. Lab. 1 1 120 129 Lab Electronics Lab. 1 1 100 106 Lab Metrology Lab. 1 1 70 b3 Lab Methods - 1 - 51 Computer (Circuit imprime) - 1 - 35 Photo lab and annexes - 1 - 22 Photo lab Chemistry/Physics Lab. 1 1 70 82 Chemistry lab Physics Lab. - 1 - 58 Physics lab Material testing. 1 - 120 - Thermo dynamics lab. 1 2 180 164 Workshops Electricity Shop 2 3 240 248 Mechanical engineer shop 2 3 360 294 Mech. engin. Carpentry + plastics shop 1 2 120 197 Lab (Incl. prep.) Hydraulics lab. 1 1 180 187 Lab Masonry shop 1 1 + 2 180 230 Shop + Lab Business machines 1 - 50 - See Classroom (30) Bookkeeping 1 - 50 - Above Chemistry and Food technology 500 344 Administration 1 1 200 336 Id. Staff offices and secretarial 320 622 Office spread all over the bldg. Library 1 1 230 220 Unused Ablution 1 1 70 128 Storage 1 1 40 114 Sub-total 4,510 4,761 Circulation area 1,350 1,061 Total gross area 5,800 5,822 Boarding Nil (Provided Staff housing Nil by FAC) 2. Lycee Delafosse - Dakar Rehabilitation of existing facilities - no extension or construction of new buildings involved 3. Lycee A. Peytavin - St. Louis Academic & Communal Classroom 4 4 - 240 219 Classrooms Store room 1 4 60 26 Unused Workshop 1 1 100 96 Unused Sub-total 400 341 + Circulation & Walls 90 145 Total gross area 490 486 4. Agricultural School - Ziguinchor Academic & Communal General Science Laboratory 1 1 80 80 Unused (including Prep. room & storage) Laundry 1 1 60 56 Laundry Cold room 1 1 10 10 Cold room Farm shed I - 240 - - Sub-total 390- 146 + Walls 12 14 Total 402 160 Boarding Nil Nil Staff Housing Director's residence 1 1 100 100 House veranda 37 137 5. Merchant Marine School - Dakar - No construction or extension involved SENEGAL CREDIT NO. 253-SE FIRST EDUCATION PROJECT - ORIGINAL IMPLEMENTATION SCHEDULE AND COSTS FOR CIVIL WORKS CMPARED TO ACTUAL IMPLEMENTATION AND COSTS Credit Agreement Signed: June 18, 1971 6/71 6/72 6/73 6/74 6/75 6/76 6/77 Years 1 2 3 4 5 6 IMPLEMENTATION Quarters 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 Civil Works US$ millions* University Institute of Appraisal 0.75 :::::: #** *** *** ++$ $$= XXX XXX XXX XXX XXX XXX VVV VVV VVV VVV Technology - Dakar (IUT) Actual 2.0 ::: #* *** *** *** *** *** *** *** *** *** 4-++ $$$ $$= XXX KXx Xxx xxx xxx xKK VVV VVV VVV VVV Lycee Delafosse - Appraisal 0.03 ::: ::: #** *** ++$ $$= XXX XXX XXX XXX VVV VVV Dakar (IMD) Actual 0.03 ::: #** * **+ ++$ $$= XXX XXX XVV VVV V Lycee Peytavin - Appraisal 0.05 ::: ::: #** * ++$ $$= XXX XXX XXX VVV VVV VVV VVV St. Louis (LAP) Actual 0.07 ::: ** *** *** *** *** *** *** *** === XXX XXX XXX XXX VVV VVV VVV VVV Ecole d'Agriculture - Appraisal 0.06 ::: ::: #** *** *** ++$ $$= XXX XXX XXX XXX VVV WV VVV VVV Ziguinchor ** (EAZ) Actual 0.11 ::: #** *** *** *** *** **+ +$$ ==X XXX XXX xXX XXV VVV VVV VVV * Original date ** Buildings only Legend : Selection and appointment of consultants $ Tendering of bids # Survey of sites = Review of bids and award of constracts * Design and construction document phase X Construction phase + Review of design and construction documents V Guarantee phase I SENEGAL CREDIT NO. 253-SE ANNEX 3 Page 1 of 2 COMPARISON BETWEEN ESTIMATED AND ACTUAL COSTS OF EQUIPMENT Costs in CFAF Project Item No. 1 - University Institute of Technology - Dakar Estimated 1/ Actual Furniture 12,570,000 12,449,570 Equipment l)' Languages Laboratory - 14,972,472 2) Business Adminis ation 6,186,524 Management 3) Chemistry and Food 14,006,000 26,209,245 Technology 4) Mechanical Engineering ) 37,787,000 5) Electrical Engineering ) 107,976,000 22,539,597 6) Civil Engineering ) 20,731,656 TOTAL 134,552,000 140,876,064 Project Item No. 2 - Lyc6e Delafosse - Dakar 1) Biology Laboratory Equipment 2,300,000 2,126,056 2) Mechanical Engineering Work- shop Equipment 22,968,000 21,798,000 3) Meteorology - Profile Projector 3,000,000 4,704,820 4) Automatic Manufacturing Processing Equipment 1,500,000 - 5) Electrical Engineering Workshop Equipment 5,000,000 5,718,520 6) Welding Workshop Equipment 400,000 ) 7) Metalwork Workshop Equipment 1,000,000 ) 1,973,250 8) Reproduction Equipment 1,200,000 1,770,783 9) Office Equipment 5,400,000 6,545,786 TOTAL 42,768,000 44,637,215 1/ Including provision for physical increases but excluding price escalation. This estimate was based on the draft equipment lists. ANNEX 3 Page 2 of 2 Project Item No. 3 - Lyc6e Peytavin - St. Louis 1) Machine Tools 8,506,800 12,573,483 2) Meteorology Equipment 5,560,000 6,017,905 3) Office Machines for Commercial Section 2,599,300 - TOTAL 16,666,100 18,591,388 Project Item No. 4 - Agricultural Technicians School - Ziguinchor 1) Tractor 1,107,700 1,130,000 2) Agricultural Mechanical Equipment 2,460,700 2,120,381 3) Technical Library 264,000 202,770 4) Science Equipment 1,000,000 1,106,125 5) Vehicles 1,987,700 1,981,176 TOTAL (delivered Ziguinchor) 6,820,100 6,540,452 SNEXAL - FIRST EDUCATION PROJECT (Cr. 253-SE) Appraisal Cost Etimates and Actual Cost by Project Coamonent (CO CIAF) Site Development and Buildings Professional Services Equipment and Furniture Technical Assistance Total Costs Project Component Appraisal estimates Appraisal estimacs Appraisal estimates Appraisal estimates Appraisal estimates Actual Actual Actual Actual Actual % 1970 including Costs 1970 including Costs 1970 including Costs 1970 including Costs 1970 including Costs Cost prices contingencies prices contingencies prices contingencies prices contingencies prices cntingencies difference Une ty Institute of 207,072 251,886 458,795 20.707 21,950 32,142 122.320 143,280 140,876 350,099 417.116 631,813 + 80 Lycee Andri Peytavin 15.070 18,298 17,534 1,507 1,597 614 17,663 20,687 19,197 34,240 40,582 37,345 + 9 Lyc4e Maurice Delafoase 7,600 9,208 7,606 760 806 - 47,486 55,607 44,637 55,846 65,621 52,243 - 6 Ecole d'Agriculture,. 17,431 21,249 25,059 1,763 1.848 597 7,226 8,462 6,540 26,400 31,559 32,196 + 22 Ziguinchor Ecole Nationale de - - - - - - 63,874 74,796 - 5,554 5,887 3,800 69,428 80,683 3,800 - 96 Formation Maritime Sub-Total 247,173 300,641 508,994 24,717 26,201 33,353 258,569 302,832 211,250 5.554 5,887 3,800 536,013 635,561 757.397 + 61 Project Administration 55,542 55,542 45,120 - 19 TOTAL 591,555 691.103 802,517 + 36 % % difference between appraisal estimates, excluding er.i.ingencies and actual costs. SENEGAL - FIRST EDUCATION PROJECT (Cr. 253-SE) Credit Allocations, Disbursements and Project Costs in US$ Original allocation First Revision Second Revision 1/ Total Cost Estimated Actua % Jun 18, 1971 December 20,1973 June 1975 Disbursements in $ 1970 Dollar Costs 3 Disbursed 1. Equipment,tools and furniture a) Technology Institute ..395,000 395,000 b) Merchant Marine School 210,000 - ) 831,000 760,303 760,685 936,392 81 c) Other Project Institutions 220,000 220,000 ) II. Civil Works a) Technology Institute 475,000 475,000 795,400 759,559 1,832,828 2,256,179 34 b) Other Institutions 95,000 95,000 III. Consultant Services 90,000 262,000 145,800 151,803 120,096 151,803 100 IV. Fisheries training expert 20,000 20,000 15,600 15,542 13,683 15,542 100 V. Operational costs of project 200,000 200,000 200,000 199,999 200,000 200,000 100 unit including salaries of the project architect and accountant VI. Scholarship - 12,000 12,000 VII. Unallocated 295,000 321,000 200 - - TOTAL 2,000,000 2,000,000 2,000,000 1,887,206 2,927,292 3,559,916 53 1/ As of February 9, 1977 2/ Exchange rate $1 = CFAF 277.71 3/ For categories 1 and 2 on the basis of average weighted exchange rate for the pro6ect period $1 = CFAF 225.60 ANNEx 6 SCHEDULE OF DISBUZMEINTS AS OF February 9, 1977 SENEGAL - Cr. 253-SE ACCUMULATED DISB iENTS IN THDUSANDS OF 1BAD/IDA .S. DOLLARS FISCAL ACTUAL DISBURSEMENTS YEAR AND ACTUAL TOTAL APPRAISAL REVISED DISBURSENBNT AS A PERCENTAGE OF QUARTER DISBUBSEKNTS ESTIMATES ESTIMATES BSTIMATE ESTIMATES 1972 1 2 3 0.01 4 0.01 0.03 20 ) 1973 1 0.03 0.05 43 ) 2 0.04 0.07 24 ) 3 0.07 0.17 22 ) 24 0.07 0.32 12 ) 1974 1 0.09 0.59 10 ) 2 0.13 0.88 12 ) 3 0.16 1.07 13 ) 4 0.23 1.25 16 ) 1975 1 0.46 1.41 29 ) 2 0.52 1.59 29 ) /1 3 0.58 1.80 31 ) 4 0.85 1.87 44 ) 1976 1 1.36 1.93 70 ) 2 1.55 1.97 78 ) 3 1.60 2.00 80 ) 4 1.70 85) 1977 1 1.80 1.80 90 ) 2 1.90 2.00 1.90 95 /2 3 2.00 24 2.00 /1 % of appraisal estimate. /2 % of latest disbursement estimate. SENEGAL - First Education Project - Cr. 253-SE Flow of Disbursements: ------ Projected at Appraisal Actual 4.0 --r 0.2 0.6. 0.61/ Qvd. rter & 3 If 1 4~ 3 4 ~ 3 . I Z 3 4 I & 3 4 I 3 F, vrm iq15/ SENEGAL CREDIT NO. 253-SE Status of Fulfillment of Credit Covenants Action to be taken Action Project Item and Related Covenants Reference by Taken Observations and Comments University Technology Institute 1. Curricula had to be revised and agreed upon and in Cr. Agr. Revised curricula were found acceptable with minor modifications. respect of industrial chemistry and food technology 2.01b(iii) Dec. 31, YES Enrolment plans found acceptable, also in view of possible courses also a proposal for enrolments by specialty with and 1971 diversification of training. a detailed economic justification therefor 4.02b(ii) 2. Advisory board comprising representatives of private Cr. Agr. YES The advisory board has in the past not met very frequently; but industry and commerce and the appropriate Ministries 4.04a(i) - recently a small working committee of board members has been should be set up created. 3. Institute will keep employment records of graduates Cr. Agr. - YES Records have not been analyzed, are mainly used for recruitment 4.04a(ii) for complimentary training. Technical Secondary Education 1. In Lycee Delafosse 800 places will be reserved for upper Cr. Agr. beginning YES Targets have been exceeded. secondary technical and vocational training 4.03 school year 1975/76 2. In Lycee Peytavin 300 places will be reserved for upper Cr. Agr. beginning NO Recruitment base is small and necessary equipment is lacking. secondary technical and vocational training 4.03 school year 1975/76 Agricultural Training 1. Pre-service training for agricultural agents of the kind Cr. Agr. July 31, YES In spite of the fulfillment of this covenant the school in offered in Ziguinchor shall be discontinued in Louga 4.02b(i) 1974 Ziguinchor is still seriously underenrolled. Merchant Marine School 1. Competent and experienced fisheries expert shall be Cr. Agr. - YES employed 3.02 2. As a result of a reorganization a revised curriculum Cr. Agr. June 30, YES The consultant for the reorganization arrived only in should be submitted and 4.02b(i) 1972 November 1973. A reorganization had already been implemented and only minor modifications were suggested. 3. Agreement should be reached on the adoption of a new Cr. Agr. June 30, YES training program 2.Olb(iv) 1972 General Government will give priority to project institutions within Cr. Agr. - YES Project institutions are well staffed. its overal staffing program 4.05 Implementation 1. A project unit will be established under the Direction Cr. Agr. Condition YES Project unit fulfilled duties described in Schedule 4. of the Director of Public Works 3.Olb and of Schedule 4.1 Effectiveness 2. Project architect and accounted must be selected and Cr. Agr. Condition YES employed 8.Olb of Effectiveness SENEGAL CREDIT NO. 253-SE INTERVIEWS OF EMPLOYERS CONDUCTED BY THE MISSION Public Sector Private Sector IUT Graduates Enployed IUT Graduates Employed Diplomates (DUT) Diplomates (DUT) Number of Business Senior Number of Business Senior Enterprises Industrial Adminis. Technician Enterprises Industrial Adminis. Technician Textiles - - - 7 0 0 Food Processing 1 20 1 1 3 3 1 0 Energy/Water 2 16 3 14 1 3 1 0 Mechanical/Electrical - - - - 2 4 0 0 Mines and Chemical - - - - 3 16 7 2 Public Works 0 0 0 0 1 2 0 0 Consulting Engineers/ 1 2 1 1 1 0 1 0 Services TOTAL 4 48 5 16 12 35 10 2 SENEGAL CREDIT NO. 253-SE ORGANIZATION OF THE COMPLEMENTARY TRAINING COURSE INDUSTRIAL DEPARTMENT DUT DUT +2years of irect entrance practical experience from diploma course (20%) 15 October 15 Oc toberfo (10%) Ist phase General Technology Course 1st phase (32 weeks) Definition of the Work Project (32 weeks) 15 July 15 July Back to ndustrial Training 2nd phase Industry with Report (8 weeks) 15 October 15i Ocoe WORK PROJECT 2nd phase Specialization Courses 3rd phase (20 weeks) Management and Business Economics Courses (20 weeks) 1st March 1st March ndustrial Trainin 4th phase with Thesis (20 weeks) 15 Julya 0 0 SENIOR TECHNICIAN DIPLOMA M SENIOR TECHNICIAN DIPLOMA (ingenieur) (ing6nieur) SENEGAL CREDIT NO. 253-SE ORGANIZATION OF THE COMPLEMENTARY TRAINING COURSE BUSINESS DEPARTMENT DUT DUT + 2 years of irect entrance practical experience prciclexeince from diploma course (20%) 15 Octob er 15 October (10%) 1st phase General and Management 11st phase (32 weeks) Complementary Training (32 weeks) 115 July 15 July Back to Industrial Trainin 2nd phase Industry wtport (8 veeks) 15 October 15 October 2nd phase Recapitulation 3rd phase (20 weeks) and Coorporate Analysis (20 weeks) lst March Ist March ndUstrial Training 4th phase with Thesis (20 weeks) 15 July ADVANCED DIPLOMA IN ADVANCED DIPLOMA IN MANAGEMENT AND ADMINISTRATION ID ID MANAGEMENT AND ADMINISTRATION SENEGAL CREDIT NO. 253-SE UNIVERSITY TECHNOLOGY INSTITUTE STUDENT FLOW,(1975/76) First-Year Students Second-Year Students Enrollments Promoted Promoted Enrollments in to Drop- to in Drop- 1st year 2nd year Repeaters Outs 2nd year 2nd year Passed Repeaters Outs Passed D. INDUSTRIAL DEPT. A. Biological 5 5 - - 100% 7 5 1 1 71% Analysis G. Chemical 13 6 2 5 46% 7 7 - - 100% Engineering Food Technology 7 3 - 4 43% 4 4 - - 100% Electronic 51 28 7 16 55% 10 10 - - 100% Electro-technique - - - - - 19 18 1 - 90% Maintenance 13 12 1 - 92% 7 7 - - 100% Mechanic Sheet-metal Work 13 11 2 - 84% 10 10 - - 100% Surveying 9 5 3 1 55% 7 4 2 1 57 Building Trades - - - - - 13 13 - - 100% Public Works 38 30 7 1 78% 12 11 - 1 91% Rural Engineering - - - - - 9 9 - - 100% Meteorology 11 11 - - 100% 7 7 - - 1007 BUSINESS DEPARTMENT Commercial 22 9 1 12 40% 10 10 - - 100% Techniques Finance and 44 23 4 17 52% 25 25- - - 100% Accounting Hotel Management 22 5 4 13 22% 7 7 - - 100% TOTAL 248 148 31 69 59% 154 147 4 3 95% ANNEX 12 SENEGAL CREDIT NO. 253-SE UNIVERSITY TECHNOLOGY INSTITUTE Graduates by Specialization (1971-1975) Sections 1971 1972 1973 1974 1975 Total Chemical Engineering 7 8 19 20 20 74 Civil Engineering 10 - 8 35 34 87 Electrical Engineering 14 25 22 18 24 103 Mechanical Engineering 4 - 16 l4 18 52 Meteorology 3 - - - - 3 Business Department 10 l4 21 42 36 123 TOTAL 48 47 86 129 132 442 ANNEX 13 SENEGAL CREDIT NO. 253,SE UNIVERSITY TICHNOLOGY TWTITUTE ENROLLMENTS - (1966-1975) School Year Initial Training Complementary Training Total 1965-66 20 - 20 1966-67 38 - 38 1967-68 29 - 29 1968-69 42 - 42 1969-70 68 - 68 1970-71 125 - 125 1971-72 176 - 176 1972-73 243 - 243 1973-74 347 28 375 1974-75 366 57 423 1975-76 402 49 451 ANNEX 14 SENEGAL CREDIT NO. 253-SE Estimated Recurrent Cost-IUT, CL976/77) (CFAF million) Senegalese Budget General recurrent costs 25 Recurrent cost - restaurant and dormitory 85 Scholarships 120 Personnel 35 265 French Assistance Subsidy on recurrent costs 60 Personnel 100 160 Total Recurrent Costs 425 SENEGAL CREDIT NO. 253-SE ANNEX 15 UNIVERSITY TECHNOLOGY INSTITUTE Staffing Position, (1975/76) Number of Staff Category Senegalese Expatriate Total Permanent Staff a) Higher education - lecturers 5 5 - junior lecturers 2 2 - teaching assistants - 2 2 - assistants 3 4 7 b) Secondary education - general subject teachers 3 10 13 - technical teachers 5 5 10 c) Contract teachers - 29 29 Total 11 57 68 Part-time Staff from the para-public enterprises 24 26 50 from the private enterprises 6 14 20 Total 30 j o 70 SENEGAL CREDIT NO. 253-SE ENROLLMENT IN TECHNICAL SCHOOLS,(197Q-1976) 1969/70 1970/71 1971/72 1972/73 1973/74 1974/75 1975/76 Maurice Delafosse, Dakar Technical middle school (lower sec. cycle) 320 280 280 410 524 674 955 Technical secondary school (upper cycle) 847 1140 1140 1176 1087 1194 1383 VocationalTraining Center 233 220 130 114 100 85 .89 Total 1400 1640 1550 1700 1711 .1953 2427 Andre Peytavin, St. Louis Technical middle school (lower sec. cycle) 120 120 -- 259 362 491 552 Technical secondary school (upper cycle) 135 194 243 210 190 181 161 Vocational Training Center 254 286 208 273 93 95 94 Total 509 600 451 742 645 767 807 Total number of students in upper cycle 982 1334 1383 1386 1277 1289 1544 ANNEX 17 SENEGAL CREDIT NO. 253-SE MERCHANT MARINE SCHOOL Enrollment and Number of Classes, (1975/76) Enrollments Class Senegalese Other Total Normal Course Deck: Common Course 2 39 39 BEPM 1/ 2 42 42 Trainee Petty 1 15 15 Officer Engineering: Trainee Petty 1 14 2 16 Officer Officer 1 7 3 10 (3rd class) Total 7 117 5 122 Special Course (Promotion Sociale) BCPM V .2 34 34 Captain Home 1 7 7 Trade Mechanic 450 hp 1 3 1 4 Total 4 44 1 45 TOTAL 11 161 6 167 1/ Brevet d'Etudes Professionnelles Maritime 2/ Brevet de Capacite Professionnelle Maritime