Madagascar - Second Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 6774 PROJECT COMPLETION REPORr MADAGASCAR SECOND EDUCATION PROJECT (CREDIT 663-MAG) May 22, 1987 Education and Manpower Development Division Eastern and Southern Africa Regional Office 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 authorizat!on.  FOR OMCAL US ONLY THE WORLD SANK Washmgton. D.C. 20433 U.S.A. OK1 of ODvectohCt.wai opftatm lVaWIttA May 22, 1987 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Completion Report: Madagascar Second Education ProJect (Credit 663-MAG) Attached, for information, is a copy of a report entitled "Project Completion Report: Madagascar - Second Education Project (Credit 663-MAG)" prepared by UNESCO and reviewed by the Eastern and Southern Africa Regional Office. Under the modified system for project performance auditing further evaluation of this project by the Operations Evaluation Department has not been made. Attachment This document hss a matricted dbidbutko NW may be uS by moipblens only in fth perfonnance of their offcial duties. Its contents may nMothewie be divelxed wut World Bank authodattbn.  FOR OMCIL US ONLY LI8T OF AEEREVIATIONS ASN Persons called up for national service BEPC Certificate of first cycle studies BEPOTEP Curricular Studies Office and Curriculum Development Technical Branch BMET Malagasy Technical Studies Office CAPR Provincial AcadeLic Centre CIRESEB Secondary and Basic Education Area (formerly COSEB) CNAPMAD National Teaching Materials Production Centre CNCDC National Cyclone Damage Coordination Committee CUR Regional University Centre DPESEB Provincial Directorate of Secondary and Basic Education FNDE National Economic Development Fund JIRAMA Name of the national water and electricity company MINESEB Ministry of Secondary and Basic Education MTP Ministry of Public Works ORT Organization for Rehabilitation through Training PAPMAD Malagasy stationers PASCOMA School insurance (Malagasy school accident protection) SAFF Primary school (level I) SEIMAD Name of a Malagasy consultant firm SFF Initials of the Malagasy name for secondary schools (level II) SLP Educational Logistics Service (formerly BEPOTEP) SPE Provincial Education Service VRD Site development VSN National Service Volunteers Thib document ha a sited distribution and may be used by rcipk is only in the perfoman|ce of thdir off dutie Its contents may not otherwie be discosed without Wofid Bank authoration.  PROJECT COMPLETION REPORT MADAGASCAR SECOND EDUCATION PROJECT (CREDIT 663-MAG) TABLE OF CONTENTS Page Preface i Basic Data Sheet ii Evaluation Summary Iv CHAPTR I: PROJECT ORIGINS ADD CO 1TN A. Project Origins 1 VI B. Project Strategy and Objectives 1 C. Project Con;tent 2 CHAPTER II: PROJECT A]MIRSTRATION 3 CHAPTER III: PROJECT INFLEMITTION 5 A. Project Duration $ B. Physical Implementation 5 Sites 5 Architectural Services 5 Architectural Des4gn 6 Construction 6 Furniture 8 Equipment 8 C. Technical Assistance 9 Expert Services 9 Training Fello.-ships 10 D. Implementation of Credit Conditions 10 E. World Bank Supervision 11 CHAPTER IN: COSTS AND FINANCING 12 A. Appraisal Report Estimates 12 B. Actual Costs 12 C. Sources of Financing 13 D. Unit Costs 14 E. Technical Assistance Costs 14 F. Implementation and Withdravals Calendar 14 G. Cyclone Damage and Credit Remainders 15 H. Operating Costs 15 CHAPTER V: PROJECT RESULTS 16 A. General Considerations 16 B. Provincial Academic Centres (CAPRs) 16 Space Utilization 16 Means of Transport 16 Administrative Responsibil,ties 17 Training Activities 17 Staff 17  Table of Contents (cont.) Page r. National Centre for Educational Materials 18 Production (CNAPMAD) 18 Space Utilization 18 CNAPMAD Activities 18 Staff 19 Sale of Products 19 School Textbook Production 19 E. Educationel Planning and Statistics 20 F. Educational Evaluation 21 G. Project Admnistration and Pre-Investment Studies 21 H. Cyclone Damage 21 CHAPTEP VI: CONCLUSIONS AND 22 A. Conclusions 22 Provincial Academic Centres 22 CNAPMAD 22 School Textbook Production 22 Educational Planning and Evaluation 23 Project Administration 23 Technical Assistance 23 B. Recommendations to the Government 23 C. Recommendations to the Bank 24 LIST OF ANNE 1. Persons Met 2. Implementation Calendar 3. Implementation of Credit Agreement Covenants 4. Comparative Areas of CAPBs and CNAPMAD 5. Construction Period 6. Technical Assistance and Training Fellowships 7. Project Expenditures by Category 8. Project Expenditure by Component 9. Disbursements Schedule (Table) 10. Disbursements Schedule (Diagram) 11. Comparative Unit Costs 12. Re-allocation of Funds 13. MINESEB Organization Chart 14. DPESEB CAPR Operating Structure 15. CAPR Training Acvitities 16. CNAPMAD Organization Chart 17. CNAPMAD Operating Structure 18. Project Unit Staff 19. Project Unit Staff Changes (ex. Table 2.1)  - I - PROJICT COMPLETION RRPORT SBCOND EDUCATION PROJECT (CREDIT 663-0AG) PRtEACE This is a Project Completion Report (PCR) on the Second * Education Project in Madagascar, for which Credit 663-MAG was signed Deaembe- 10, 1976, for US$14.0 million equivalent. The Credit was closed on December 31, 1984; US$2i7,000 rmained undisbursed and was cancelled on July 17, 1985. The PCR ws prepared by a UNESCO mission for the Government of Madagascar under the tens of the Cooperative Agreement and reviewed by the Eastern and Southern Africa Regional Office. The mission visited Madagascar in May/June 1985, and the report presents the mission's comments, conclusions and recommendations. In accordance with the revised procedures for project performance reporting, this PCR was read by the Operations Evaluation Department (ORD) but the project was not audited by ORD staff. The draft PCR was sent to the Borrower and its agencies for comments in March 1987. No coments have been received.  PROJECT COMPLETION REPORT MUDAGASCAR SECOND EDUCATION PROJECT (CREDIT 663-MAG) BASIC DATA SHEET rhd aacar - Second Education Project, Loan 663-NAG Proposed Actual Total project cost: In Malagasy francs 4 198 600 000 5 393 000 000 In US dollars 19 260 000 18 010 000 Credit (loan) amount 14 000 000 1/ 14 000 000 Disbursed (amount) 14 000 000 1/ 13 723 000 Cancelled - 277 000 Credit (loan) agreement date - 10 Dec. 1976 Effectiveness date - 15 Aug. 1977 Date of completion of physical elements 31 Dec. 1980 September 1985 Overrun 48 months 105 months Closing date 31 Dec. 1981 31 Dec. 1984 End of disbursements 30 June 1982 17 July 1985 1/ Norway took a 50% grant participation (kroner equivalent to Us$7 million) of the external financing under an agreement signed on 16 December 1977. As a result of exchange rate fluctuations, Norway's contribution Actually amounted to US$6.4 million equivalent. Consequently, the principal due to IDA amounts to US$7.32 million equivalent. Any further references to the amount of the credit in this report include Norway's participation. Source: Project Unit. Cumulative disbursements. (estimted and actuml) (US$ millions) 1977 1978 1979 1980 1981 1982 1983 1984 1985 Estimated dis- bursements 0.18 1.73 6.61 12.40 14.00 - - - - Actual dis- bursements 0.05 0.24 0.27 4.70 6.96 10.88 12.92 13.12 13.72 % of appraisal amount 27.70 13.90 4.10 37.90 49.70 77.70 92.30 93.70 98.00 Exchange Rates Local currency: Wagasy francs (hg.) Appraisal (1976) 1US$ = 218 Pzg. January 1977 = 'Fmg. January 1978 "= a Ymg. January 1979 " =214Ftg. January 1980 " 203 1)g. January 1981 "- 5 Pmg. January 1962 " 286 ft. January 1983 = 368 Fmg. January 1984 = 495 Fmg. January 1985 " 662 Ftg. June 1985 " =673 Fog.  - iii - Distribution of Crqgit (US$ millions) Expenditure Appraisal Credit/loan Actual Category Estimzates Agreement Civil engineering 6.69 6.70 7T940 Furniture and equipment 6.69 6.70 3.883 Technical assistance 1.13 1.30 1.441 Fees 0.62 o.60 0.378 Adnin. and assessment 0.50 0.30 0.081 Others 1.72 1.80 - Sub-total 14.00 14.00 13.723 Cance.Ued (17/07/86) 0.277 Total 14.000 World Bank Missions Mission Dates No.of No. of Type of days persons specialists Identification April 1974 Preparation Oct. 1975 Appraisal Dec. 1975 Supervision 1 Dec. 1977 6 1 A Supervision 2 April 1977 7 2 G. Supervision 3 Aug.-Sep. 1977 15 3 E,G,G Supervision 4 Dec. 1977 10 2 A Supervision 5 May 1978 14 2 A,G Supervision 6 Aug.-Sep. 1978 14 2 A,G Supervision 7 Feb. 1979 8 1 A,Pr Supervision 8 June 1979 8 2 A,Pr Supervision 9 Sep. 1979 8 1 G Supervision 10 Dec. 1979 8 1 G Supervision 11 May 1980 11 2 A,G Supervision 12 Dec. 1980 9 1 A Supervision 13 oct. 1981 13 2 A,E Supervision i4 Sep. 1982 10 2 A,E Supervision 15 April-May 1983 10 2 A,E Completion May-June 1985 28 2 A,G Key: A = architect; E = economist; G general educator; P printing specialist.  - iv - PROJECT COMPLETION REPORT MADAGASCAR SECOND EDUCATION PROJECT (CREDIT 663-MAG) EVALUATION SUMMARY Introduction The project was identified by a Bank mission in 1974 and prepared by the Government with assistance from a Unesco/CP team in October 1975. Appraisal took place in December 1975 and Board approval, on November 4, 1976. The Credit of US$14 million became effective on August 15, 1977 and was closed on December 31, 1984, three years behind schedule (w .th an undisbursed balance of US$0.3 million being cancelled). Total project costs were Fmg. 5.4 billion (as compared to an appraisal estimate of Fmg. 4.2 billion, i.e., a 28% overrun), but because of exchange rate fluctua- tions, only US$18.0 million equivalent vs. an appraisal estimate of US$19.3 million. Since Norway made a grant contribution of US$6.4 million equiva- lent, after the credit became effective, the net debt incurred under the Credit amounted to US$7.3 million equivalent. Government's financial participation was US$4.3 million equivalent, or about 24% of total project cost. Objectives and Project Content The project was to help develop Madagascar's basic education system while improving its cost-efficiency. It comprised the following componentss (a) civil works, furniture and equipment for a national learning materials center (CNAPMAD) and for five regional academic centers (CAPR); (b) textbook development; and (c) project administration and technical assistance (paras. 1.2- 1.4). Implementation Experience The project experienced substantial delays--eight years instead of five from effectiveness to credit closing. The reasons for this were part- ly administrative/organizational such as insufficient coordination among participating Government agencies, lack of full-time staff in the PIU, and partly logistical--need for site changes/modifications, unavailability of materials (paras. 2.3-2.4, 3.3-3.5, 3.15).  - v - Despite three closing date extensions two of the five regional academic centers were not ready at the end of the Implementation period, and textbook production had not yet started (paras. 3.13, 5.18). In an effort to use credit funds fully and to cover emergency investment needs, IDA, in August 1984, agreed to a reallocation of funds to finance recon- struction of cyclone damages to some 20 schools in two provinces (para. 1.5). Some of the buildings provided under the project show a number of design flws but the physical structures are generally of good quality (and, in the case of CRAPMAD, were thought to be even too elaborate) (paras. 3.10-3.12). However, most of the woodwork appears to be suffering fr(m low quality and inadequate preparation of the materials used and, at the time of completion was already in urgent need of repairlreplacement; the same remark applies to locally made furniture (paras. 3.16, 3.18). A total of 118 vehicles were procured under the project. In spite of some spare parts purchased in 1984 more than half of the vehicles used in the provinces were beyond repair by the end of the Implementation period (para. 3.20). Equipment (mainly for the Regional Academic Centers) is on the whole suitable and of good quality but was, at completion time, still kept stored in the workshops because the main facilities did not provide adequate protection against theft, or because additional work (foundations, supply lines, drainage, etc.) had still to be done (para. 3.21). Technical assistance to CNAPIAD, despite a rtduction by 302 (from 216 to 150 man-months) achieved its objective of hslping that institution in its initial phase; unfortunately, another TA component of 48 man-months to assist with educational planning and statistics work, had to be elimi- nated to compensate for cost overruns in the CNAPEAD TA program; its resumption under a new project was envisaged (para. 3.25). Operations Results Operation of the project institutions has been severely affected by deteriorating economic conditions: budgetary constraints forced the Government in 1982 to stop recruitment of national service (VSN) teachers which in turn meant that teacher training activities in the five CAPR are only a fraction of the volume envisaged (varying from 4 to 421 of appraisal estimates, with even lower use factors for dormitories) (para. 5.6). By the same token, the envisaged educational support role of the ce& _ers is severely curtailed by the aforementioned lack of serviceable vehicles. In the case of CNAPHAD, the opposite has happeneds even during initial implementation, its area of responsibilities was expanded requir- ing, in response, an augmentation of CNAPHAD's physical facilities by over 40%. Even this expansion, however, provad insufficient as the schools' needs for educational materials and, apparently, available funds for their production proved larger than anticipated and led to the establishment of an industry-scale production line of materials (pars. 6.1).  In addition, purchae of a printi prsess originally not fore- seen, creatid a production capacity for 750,000 textbooks a year which is now coming on stream and which is expected to operate with full cost recov- ery by 1988 (paras. 3.8, 5.8-5.10, 5.15-5.18). Sustainabilitv Satisfactory operation of the project facilities depens above all on the availability of adequate budget resources. In the ca8e of CUAPMAD, the increased scope of operatios ha augmented recurrent budget require- ments considerably. However, the increasingly cmmerial mode of operation promises an ease on financial constraints within the next fe years (paras. 6.6-6.7). For the CAPR the situation is more difficults not only have persistent budget constraints put a stop to teacher recruitment, thus de- priving the centers of their main purpose--teacher traiing and upgrading-- but in addition Insufficient quality control in their construction and furnishing is now resulting In much high mintatenance and repair require- ments than would normally have been the case. An accelerated devolution of administrative and educational responsbilities to the centers way help accomplish a more efficient use of these facilities (pareas. 5.5-5.6). Conclusions The experience of this project underlines the Importance of (i) a clear definition of responsibilities end functions of goverment agencies participating In project ipleentation, complemsnted by adequate full-tie staffing (ii) proper synchronization of civil works and furnitur,loquipment deliverie to avoid protracted idling of major investment items; (iii) appropriate arrangemnts for the operation, maintenance, repair and replacment of vehicles; (iv) stringent quality controls for civil works, furniture and equipment; and (v) careful adherence to the original project concept Including sise, composition and tyep of use of project facilities; if major modifications are inevitable, a detailed assesment of the Implications in term of effective desmad and incremental resource requirements, should precede such a decision.  PROJACT COtPLETI9N MPOE. MADAGCR SECOND EDUCATION PROJECT (CESDIT 663-MAG) CHAPE I PRO.CT IGINS AID A. Project Orlai 1.1 The composition of the Second Education Project was identified during a Bank mission in 1974. The project envisaged was prepared by the Government with the help of a Unesco team in October 1975 and an appraisal mission then visited Madagascar in December 1975. The draft appraisal report was discussed by government and bank officials in June 1976 and the final version was issued in October 1976. The total estimated cost was US$19.26 million of which US$14 million was to be financed by the World Bank. B. Project 8trategy and ObJectives 1.2 The project strategy was to help the Government minimlze recurrent expenditures and at the same time maximize impact on basic education through: (a) assistance to curricula to change the structure and content of basic education; (b) introduction of improved learning methods and techniques; (c) use of National Service teachers to reduce average class sizes to a more reasonable level without unduly increasing recurrent costs; (d) in-service training of existing teachers; (e) support to the inspectorate to help* it keep teachers abreast of new developments in content, learning methods and techniques; and (f) decentralization of educational administration to enable it to become more responsive to local needs. 1.3 The main thrust of the project would be on institution building for the improvement of primary education, but secondary education would also be assisted. The project would: (i) provide the administrative facilities required for the decentralization of education, training facilities for about 20% of the National Servicemen to be trained as teachers, and vehicles to enable primary school inspectors to visit the schools more regularly; (ii) establish a centre for the production of teaching mterials; and (iii) help the development of primary school textbooks.  -2- C. ProJect Con*Xt 1.4 The project comprised the following elements: (a) construction of buildings and provision of furniture and equipment for: (i) the five CAPRs (provincial academic centres) which, in addition received vehicles for the CAPRs school inspectorate and; (ii) CNAPMAD (National Centre for the Production of Educational Teaching Materials); (b) preparation of school textbooks; (c) provision of technical assistance for: (i) CNAPMAD in its initial operation stages; (ii) the statistical section of the MOE and; (iii) project evaluation; (d) project administration and pre-investment studies. 1.5 In August 1984 an unused part of the credit was applied to the reconstruction of 20 educational institutions damaged or destroyed by the Kamisy cyclone in the region of Mahajunga and Antsiranana.  CHAPTER II PROJECT ADMINISTRATION 2.1 The Project Unit was established in the Ministry of Public Works by a decree dated 13 October 1976 after approval by the World Bank of its composition. 2.2 To start with the Project Unit had a director and two coordinators (an architect and an educator), with support staff provided jointly by the Ministries of Public Works and Education. In 1977 the post of coordination architect was abolished and in 1979 it was replaced by one of an accountant. In 1980 additional support staff for all financial matters was assigned in the Ministry of the Presidency, Finance and Planning. 2.3 Despite relative stability aind the assignement of ample support staff (see Annexes 18 and 19), implementation of the project suffered gaps and difficulties through the lack of: (a) definition of the responsible authorities and the responsibilites and tasks of the Project Unit staff; (b) coordination among the authorities concerned, particularly oetween the Ministry of Public Works (MTP) and the Ministry of Secondary and Basic Education (MINESEB); (c) full-time staff in the Project Unit and availability of support staff; (d) interest by the authorities during the first years of the project. Further there was a lack of premises which led to the Project Unit splitting in two: the directorate was installed in the MTP while the rest of the staff was located first in a school and then in CNAPMAD. 2.4 An international short list of 11 building firms was made in July 1977 but tendering had to be deferred until July and October 1978 owing to a lengtby shortage of reproduction materials - ozalid, paper, ink and ammonia. 2.5 After substantial cost over-runs some bidding had to be repeated or negotiated so as to remain within the bounds of the financial limits foreseen. Further, work on three of the six project institutions was divided into sections so as to allow for a better cost control in a period of high inflation and of starting work despite illegal occupation of part of the sites (see paragraph 3.2). 2.6 Site supervision was carried out jointly by MTP's decentralized services, by the offices responsible for studies (SEIMAD and BMET) and by the Project Unit.  - 4 - 2.7 In 1984, cyclone damage repair work, financed from project funds, was given to the firms building the Mahajunga and Antsiranana CAPRs by emergency procedure approved by the Bank. All responsibility for studies and implementation was handed over to the National Cyclone Damage Coordination Committee (MTP). 2.8 Implementation of the educational aspects of the project was to be carried out at three levels: (a) national level - by the Directorate of School Planning and Orientation; (b) the project unit - by the project coordinator; (c) provincial level - by the CAPR head.  - 5 - CHAPTER III PROJECT IMPLEMENTATION A. Project Duration 3.1 Implementation of the approved project took place over eight years instead of the five foreseen at appraisal (see Annex 2). To permit its accomplishment the closing date was put back first to 31 December 1982, then to 30 June 1983, and lastly to 31 December 1984 to allow for repairing cyclone damage, which was not initially foreseen in the project. The last disbursements of the credit were made on 17 July 1985. B. Physical Implementation 1. Sites 3.2 The sites chosen for the Antisiranana and Toliary CAPRs were, when work began, partly occupied by squatters. The siting of buildings and the distribution of priority sections of the work were changed to enable construction to begin before the sites were completely cleared. 3.3 The site chosen for the Fianarantsoa CAPR sloped sharply and entailed substantial expenditures to terrace and drains. 3.4 In January 1978 the site chosen for CNAPMAD was curtailed by about a fifth of its area, which obliged the Studies Office to modify its plans and revise siting in general. 3.5 The site for reconstruction of the Mahajunga Teacher Training School was apparently chosen because ot its purchase price. Account was not taken of its distance from the town (6 kms), of its environment (a cemetery and a public rubbish dump are in the immediate neighbourhood), and of the cost of supplying electricity, for which more than a kilometer of cable will have to be run. 2. Architectural Services 3.6 The architectural studies for CNAPMAD and the Fianarantsoa CAPR were entrusted to a private consultant firm (BMET) and those for the other four CAPRs to a semi-private consultant firm (SEIMAD). 3.7 The initial architectural programme (Annexe 4) for the CAPRs has remained practically unchanged. Only the two houses foreseen were deleted for economic reasons, while the areas constructed have remained more or less the same as at appraisal (+9.6%).  - 6 - 3.8 The architectural programme for CNAPMAD (Annex 4) was considerably modified on recommendations made by technical advisers to better meet production requirements of the different trades. Tne total constructed area was increased by about 42 per cent compared with appraisal entailing a substantial rise in construction costs. 3.9 The initial programme, drawn up in August 1984, of cyclone damage repair took in 11 institutions in Antsiranana and Zen at Mahajunga. In December 1984 three other school groups were added to the Antsiranana list in an attempt to use as much as possible of the funds available before closure on 31 December 1984. 3. Architectural Design 3.10 Provincial academic centres: the buildings for the four CAPRs entrusted to SEIMAD were designed by different architects and while some buildings are similar the general concept is different for each CAPR. The architects followed the advice of the Project Unit that local materials should be used, especially at Mahajunga, Toliary and Toamasina. Accommodation is distributed by activity areas in buildings of one to three storeys, linked by covered ways. The overall concept is generally good and functional but errors of detail are numerous, particularly in the protection of openings from rainfall (except at Fianarantsoa); in the placing and choice of rainwater run-offs (Toliary' and Mahajunga); in the dangerous opening of windows on to circular areas (Toliary); in the many- windowed photographic laboratories and in the unsuitable choices of locks and of electrical material. Further, the location of offices opening on to a central corridor does not permit sufficient ventilation, while the placing of sun shades is often unsuitable. 3.11 CNAPMAD: the CNAPMAD buildings designed by BWET in collaboration with ORT technical staff are functional both in overall plan and in work spaces. It should however be noted that economies could have been made in the selection of the materials and structure of workshops and storerooms, for which construction methods currently used in industry would have done. 3.12 Cyclone damage: technical studies of repairs to damaged school buildings were made by MTP !n collaboration with a control office and on the basis of inspections made on the spot by the technicians sent from Public Works regional offices. Studies, cost- estimates and a start on work were made in record time to get things ready as fast as possible and to replace the framing and roofing torn away by the cyclone. It should, however, be noted that in some cases details were not well studied, particularly roof gutterings, drainpipes and roof ventilation. 4. Construction 3.13 Progress of work: the CNAPMAD Fianarantsoa and CAPR buildings are fully complete. The second phase of the Antsirarana CAPR is 40 per cent finished and the contracts for the Toliary CAPR are 75 per cent completed (site development, weather proofing and 30  - 7 - per cent of the administration building remain to be finished). Only the kitchen in the Fiananantsoa CAPR is installed: the other four are in the course of installation or construction. Cyclone damage repair work financed by the project are complete or are being finished except for the teacher training school (40 per cent finished) and the Mahajunga CAPE, repairs to which are 70 per cent done. 3.14 After an international short-listing of firms, tenders were invited in July and August of 1978 and bidding and the designation of contractors were done in April and July 1979 - 15 and 8 months late (see paragraph 2.4). Substantial cost over-runs obliged the Government to delete directors' and trainers' housing and to reduce external works such as fences, pathways and landscaping. For the Mahajunga and Fianarantsoa CAPEs the priority sections of the construction work were so determined as to enable the most urgent works to begin within the financial limits. 3.15 Construction of the Toamasina CAPR was the only work not to fall behind schedule. With the other five the delay occuring before tenders were invited (see paragraph 2.4) was further accentuated during construction and stretched to from 7 to 57 months compared with the dates foreseen at appraisal (Annex 2). Most of the construction projects encountered substantial difficult!es which slowed work down considerably or even stopped it completely for several months (12 at Antsiranana). Such difficulties were due to: (a) substantial earthmoving work, which delayed the start of construction (Fianarantsoa); (b) general shortages of imported materials - steel, cement, corrugated iron and fuel due to limitations imposed by the prioroity given to the regional university centres (CURB); (c) shortages of local materials at the sites, due to inadequate skilled production capacity; (d) social difficulties and a building workers strike with occupation of the Toliary construction site; (e) firms' financial difficulties (Toliary and Antsiranana). 3.16 The main building work is generally of good quality but most of the woodwork at Toliary, Toamasina and Mahajunga is already in such a state of deterioration as to need urgent replacement. The timber is of poor quality, badly seasoned and badly treated (frames had wood preservatives applied with a brush when in place instead of being impregnated before erecting) and so offer no resistance to either termites or bad weather. At Mabajunga these defects are being repaired under the cyclone-damage budget. At Toliary the buildings have not yet been taken over and the contraca-ors will have to make good the parts affected. (For Toamasina no financing means has yet to be found). Further, the metal fittings and outer locks of all the CAPEs are unsuitable or of poor quality and do not permit efficient protection against break-ins and the theft of breakable costly equipment (thefts of materials and equipment  - 8 - have already been reported at Toamasina and Mabajunga). Again the electrial installations made at Mahajunga by JIRAMA are badly fitted, ugly and sometimes dangerous, (junctions and liners next to rainwater hoppers, byepassing of fuseboards, etc.). 5. Furniture 3.17 Procurement of furniture financed by the project was made by international tender in January 1980 for CNAPMAD and in March 1981 for the CAPRs. Contractors were designated at the same time. Those for most of the wooden furniture were given to national firms and the rest to foreign ones. The furniture imported was delivered in May 1982 and that made or sold in the country in December 1980 for CNAPMAD and between January and November 1983 for the CAPRs. There were thus delays of more than three years compared with appraisal forecasts, or of one year if account is taken of the dates specified in the contracts. 3.18 On the whole the imported furniture is suitable and meets the needs. By contrast the wood used in local production, although solid, was unseasoned so that the contractors had to fill joints and cracks after delivery. Further the joinery is generally too weak for the furniture's weight which often causes losses during transportation and handling. 6. Equilment 3.19 Equipment lists, specifications and quantities were prepared in 1977 by MINESEB in agreement with the project unit. After several revisions of the lists and of the composition of lots, tenders were invited in 1978 and 1979. 3.20 The vehicles financed by the project were procured in three phases: five vehicles were bought in May 1978 for the project unit and CNAPMAD, 95 vehicles for district educational advisers and 18 others for the CAPRs were obtained by tender in 1979 and 1981. A request for a further 17 vehicles for the use of 15 new districts and the distribution of CNAPMAD materials was refused by the Bank in 1983. Spare parts financed by the project were delivered in 1984, which enabled a certain number of vehicles to be restored to running order but more than half of those delivered to the provinces remain beyond repair after five years of use in difficult conditions. 3.21 CAPR equipment was procured and delivered at the same time as the furniture. On the whole the equipment is of good quality and suits the CAPRs' initial objectives, but is at present stored in the workshops because: (a) the other buildings cannot be securely locked (see paragraph 3.16); (b) the audio-visual rooms and workshops are not in use; (c) the kitchens are not yet installed (except at Fianarantsoa).  -9- It is doubtful however, whether the advanced equipment selected for the kitchens can function for long, owing to reduction in oper;,ing budgets, difficulties in the supply of spare parts and lack of skilled staff. Further, the lack of coordination between the supplier and the contractors will entail additional work for bases, piping, supply-lines and drainage which were not foreseen or do not meet the requirements of the equipment delivered. Further it should be pointed out that as the project did not provide for purchases of books, the CAPR libraries have stayed empty except for a few books and other publications inherited from the local administration. 3.22 CNAPMAD's equipment was obtained in three phases. The first tender invitations, sent out at the same time as the CAPR one, were based on lists drawn up to match reduced targets for the production of educational materials intended to serve as models for the production from the CAPR workshops. An assessment of needs based on centralized industrial production led the authorities to send out in April 1982 a new invitation to tender for complementary equipment for the wood, glass and mechanical workshopb The first orders were delivered in 1980 and 1981, with delays of some months beyond the contract dates owing to difficulties of rail transport between Toamasina and Antanarivo. Equipment from the second lot of tenders was delivered between June and October 1983, three years after the appraisal dates foreseen. Another batch of equipment was ordered in 1984 for the woodwork shop, the production capacity of which still falls short of needs. 3.23 In December 1979 the Bank agreed to conversion of the publication material and of the 1,500 tonnes of paper foreseen at appraisal into equipment for the printing press which the Government had decided to establish beside CNAPMAD. Invitations to tender were put out in May 1982 on the basis of lists prepared by a consultant and deliveries were staggered between January and April 1985, two years behind the contract dates, owing to late construction of the workshops and delays in settling suppliers' accounts. C. Technical Assistance (Annex 6) 1. Expert Services 3.24 At appraisal the project provided for 48 man/months of expert services for educational planning. This assistance comprised a specialist in items related to education and another for school infrastructure. In addition the project was to finance 216 man/months of specialist services for starting up CNAPMAD. 3.25 All technical assistance for the project was entrusted in September 1977 to the Union Mondiale ORT, for a total of 216 mn/months. The programme laid down at appraisal was, by agreement with the Bank, re-designed so that:  - 10 - (a) the content of assistance to CNAPMAD was modified the better to meet the project's immediate needs - assistance in building design, in drawing up lists and specifications for equipment, and in training staff for starting production; (b) assistance for educational planning was dropped to compensate cost over-run in the ORT contract. This component will in part be taken up again by the UNDP project MAG/79/002 with Unesco assistance. 3.26 The ORT assistamce was in the end reduced by 66 man/months to balance increases in technical assistance costs. Despite this reduction and early difficulties - payment and construction delays and lack of qualified counterparts - the technical assistance balance is positive. It greatly contributed to CNAPMAD's establishment and starting up, enabling it rapidly to attain its production targets and even surpass them. 2. Training Fellowships 3.27 The project provided for the financing of 48 man/months of fellowships for glass-blowers intended for CNAPMAD as well as of fellowships and study tours for educational evaluation. With the Bank's agreement it was decided that the training of glass blowers should take place on the spot, with the assistance of an ORT specialist. However, the project financed 55 man/months of fellowships for the CNAPMAD directorate and for those responsible for its maintenance services, its study office and its technical directorate. Later, three other fellowships of three months each were awarded for printing, photo-composition and reproduction at the printing press, and a one-month course was financed for CNAPYAD's directorate of production and maintenance. In addition the project financed: (a) a study visit to Mauritius for project management and the production of educational materials (six persons from 19/9/80 to 1/10/80); (b) a study visit to Rumania on educational structures and the production of educational materials (four persons from 2/12/80 to 7/12/80); (c) a study visit to Algeria on the same subject (four persons): this visit was cancelled by the Algerian authorities while the group was on its way; (d) participation in a Unesco seminar in Burundi on school textbooks (one person fror. 6-12/9/83); (e) a training seminar for statisticians and planners organized at Mantasoa with Unesco participation (18 participants and 11 trainers from 28/6/79 to 14/7/79). D. Iwleieutation of Credit Conditions (Annex 3) 3.28 The state of lmplementation of the credit covenant is shown in Anne 3. The results are uneven and certain covenants in the credit  - 11 - agreement have been only partially fulfilloei, particularly as regards the project unit staff (Section 3.04) ant the project's impact (Ssction 3.08), upkeep and repair of project buildings (Section 4.02) and information about decentralization (Section 4.08). E. Wbr3A Bank supervision 3.29 The project benefited from 15 supervision missions from December 1976 to May 1983, an average of a mission every five months. The average duration was nine days and all but four missions included an architect. Their distribution was, however, uneven with four missions in 1979 and only one in 1980, 1981 and 1982. 3.30 The main problems were identified during these missions and recommendations were formulated and transmitted to the national authorities. However, such recommendations often had only a limited impact on the progress of the project, the major problems this encountered being linked with the country's economic and administrative difficulties and with the great changes which took place in its administration, especially in the educational planning team. 3.31 The Bank however, could have been able to contribute to the improvement of project implementation by greater insistance on the project unit's staff being permanent and on better definitions of each member's responsibilities. 3.32 From the supervision reports it emerges that the project's educational component has been neglected to the benefit of the physical and financial parts. More frequent participation by educators and/or educational planners vould certainly have contributed to a better balance among the project's components. 3.33 There was no Bank supervision mission between May 1983 and December 1984, the project's closing date. Better supervision of implementation during the final months would certainly have speeded up disbursements and so reduced the unused part of the credit.  - 12 - CHAPTER IV COSTS ADD FINANCING A. Appraisal Report Estimates 4.1 At appraisal the total cost of the project was estimated at USS19.26 million and the foreign exchange component at US$9.12 million. The US$14 million credit was to cover 73 per cent of the total cost with all taxes included or 80 per cent of the cost without tax. It was to enable all foreign exchange expenditure to be covered and 58 per cent of local expenditure was tax free. B. Actual Costs 4.2 The actual cost of the project was 6.5 per cent below the appraisal estimate in dollars and 28.4 per cent higher in Malagasy Francs (Fmg). Table 4.1 Category Appraisal AC!,"l Difference % Total cost in Fmg 4 199 5 393 + 1 194 + 28.4 (millions) Total cost in US$ 19 259 18 010 - 1 249 - 6.5 (thousands) 4.3 Actual project costs are summarized in Tables 4.2 and 4.3 below. Detailed costs are shown in Annexes 6 and 7. Table 4.2 TOTAL EXPENDITURE BY CATEGORY ( US$ millions) Appraisal Actual Category Cost % Cost % Construction 12.0 62.3 11.1 61.6 F\arniture 0.8 4.3 0.1 0.7 Equipment 3.5 18.2 4.4 24.3 Fees 0.9 4.6 0.5 2.9 Technical assistance 1.4 7.2 1.5 8.2 Project evaluation 0.3 1.3 - - Project administration 0.4 2.1 0.1 o.6 Cyclone damage - - 0 3 1.7 Total 19.3 100.0 18.0 100.0 1/ Excluding disbursements made after the completion mission.  - 13 - Table 4.3 TOTAL EXPENDITURE BY COMPONENT (US$ i llions) Appraisal Actual Component Cost Cost CAPR 13.3 69.0 12.4 68.8 CNAPMAD 1.6 8.2 2.1 11.6 Preparation of textbooks 3.4 7.6 1.1 6.3 Fees G 9 4.6 0.5 2.9 Technical assistance 1.4 7.2 1.5 8.2 Project evaluation 0.3 1.3 - Project administration 0.4 2.1 0.1 0.6 Cyclone damage - - 0.3 1.7 Total 19.3 100.0 18.0-1/ 100.0 1/ Excluding disbursements made after the completion mission. 4.4 While the total cost of the project in US dollars has proved slightly reduced despite the three-year time lag, this is really due to the rise of the dollar' S exchange rate against the Malagasy franc (see exchange zate, p.v.). The difference noted between estimated and actual expenditures by category are due to: (a) additional equipment bought by CNAPMAD; (b) furniture expenditures being entered under equipment; (c) cancellation of expenditures for educational evaluation, a project of which a small part was carried out with financing from Unicef (see paragraph 5.23); (d) expenditures for cyclone damage which were not foreseen at appraisal (see paragraph 5.25). C. Sources of Financing (Annexes 7 and 8) 4.5 Government participation in financing was slightly below that foreseen at appraisal (-2.4%). This was partly due to a change In the financing of imported furniture (100 per cent by the Bank), to an increase in equipment expenditures - the financing of which by the credit rose from 85 to 89 percent - and also to the distribution of financing for cyclone damage repairs, 90 per cent of which were financed by the Bank. 9J  - 14 - Table 4.4 ESTIMATED AND ACTUAL SOURCES OP FINANCING (US$ millions) Appraisal Actual Category Govt. Bank Govt. Bank Construction 4.2 7.8 3.8 7.3 Furniture 0.1 0.7 - 0.1 Equipment 0.5 3.0 0.5 3.9 Fees 0.2 0.7 0.1 0.4 Technical assistance 0.1 1.2 0.1 1.4 Project evaluation 0.0 1.4 - - Project administration 0.1 0.2 0.0 0 1 Cyclone damge - - 0.0 0 3 Total 5.2 14.0 4.5 13.5 X 27.3 72.7 24.9 75.1 1/ Excluding disbursements made after the completion mission (US$209,000). D. Unit Costs (Annex 10) 4.6 Construction unit costs rose from 23 to 40 per cent between appraisal (1976) and the signing of contracts for all the construction sites (1978/79). The construction costs of the Fianarantsoa CAPS rose by 84 per cent (+90% in US$) owing to very high expenditures on site works and draining. For the others the cost rose by different degrees according to the rate of implementation and date construction ended. E. Tecknical Assistance Costs 4.7 Technical assistance expenditures for training fellowships slightly exceeded appraisal forecasts (+7.2%) despite a substantial reduction In the duration of experts' contracts (-51.85%). This excess was mainly due to the high cost of ORT assistance and to the delay in CNAPNAD's implementation which had as a consequence the increase of contingency rates for this category. F. Iwleentation and Witbdrawals Calendar 4.8 The comparative calendar in Annex 2 shows up very substantial delays in all components, especially for the construction of the Toliary and Antairanana CAPRs. (52 months), the ones at Pianarantsoa and Mahajunga (15 and 12 months), CNAPMAD (12 months), equipment deliveries (36 months), fellowships (33 months), and the recruitment technicians for CNAPMAD (2'1 months). Only with the construction of the Toamsina CAPR and the delivery of vehicles was there little delay compared with scheduling. All these delays had repercussions  - 15 - on the credit withdrawals calendar (Annexes 9 and 10) in the form of a very slow start during the first three years, followed by a gentle acceleration in 1980. Termination of construction in 1981 resulted in a slowing down of withdrawals, with a slight pick-up in 1982/83 due to the purchase of equipment. The addition of cyclone- damage repairs brought only a few changes in disbursements in 1984 and 1985, and these stayed below the pace of the preceding years. G. Cyclone Dazi1ge and Credit R1eu,nders 4.9 The sum allocated under Credit 663-MAG for the repair of cyclone damage was fixed by a credit amendment in August 1984 at US$700,000 (Annex 12) so as to enable use to be made of sums not drawn upon at that date (see paragraph 1.5). In actual fact withdrawals for this new component amounted to only US$627,832. Further, since the unfinished constructions at Antsiranana and Toliary have advanced only a little since the amendment on 30 June 1985, the date fixed for withdrawals to finish, there was still US$276,516 unused. H. Operatin Costs 4.10 The 1984 and 1985 annual budgets for DEPESEB/CAPR differ greatly, being between Fmg 3.5 million for Toliary and Fmg.12.2 million for Fianarantsao (excluding salaries). These differences are explained by the unequal distribution of the school population and of staff. Further, part of the Toliary and Antsiranana buildings are not yet finished and so are not in use. In any case, their budgets are inadequate and do not allow a normal development of training activites. Further, the lack of funds seriously hampers the maintenance of buildings, equipment and transport, as well as the running of kitchens, workshops and laboratories. 4.11 CNAPMAD's estimated budget for 1985 was prepared on the results of preceding years and of targets set by the Directorate and MINESEB. It is at present estimated at Fmg.204.5 million for CNAPM-AD itself and Fmg.211 million for the printing press, with operating subventions reaching 52.3 per cent and 28.6 per cent respectively. These subsidies are regressive over five years and should allow financial autonony in 1988.  - 16 - CHAPTER V WPO U8tJLST A. General Consideratilos 5.1 During the eight a - rs of project implementation the educational sitvation in Madagascar has developed considerably, obliging the authorities at times to revise the general objectives Apon which identification of the project's components was based. This has especially been the case with the generalization of education, which has developed very rapidly and without any real programming, entailing serious financial and miagement problems. To lessen such difficulties the Government decided to stop recruiting teachers, including national service volunteers (VSNs) who were to be trained in the CAPRs. At the same time structural changes took place and the Ministry of Education was split In two, secondary and basic education (MINES9B) being separated from higher education. Decentralization was then effected separately, CAPRs and CURs being established in the provinces simultaneously. B. Provlncial Aceadedc Centres (CPRS) 1. Space Utilization 5.2 Construction of the CAPRs aimed at supplying, within the decentralized framework, administrative and educational premises in each province. The five CAPRs were built and equipped (Antsiranana and Toliary are being finished) and all operate under the heading DPESEB/CAPR. The provincial educational services (SPE) staff whose premises were old and cramped, were transferred to the new CAPR offices. Most of the educationsl premises are however under-utilized, lacking teachers and funds. 6art of the classrooms are at present occupied by the administration and some are lent to teacher training schools and the CURs. Further, all the workshops serve as storerooms for mterials and some other premises are used to house watchmen and staff. 5.3 The table of the CAPRs training activities (Annex 14) summarizes training given by MINESEB in 1984/85. It confirms that space-utilization rates in the educational premises are very low: 42 per cent at Toamsina, 35 per cent at Fianarantsoa, 23 per cent at Mahajunga and 7 and 4 per cent for the other two CAPRs. Further, the number of persons housed in the CAPRs during their training may be estimated at about a quarter of the total enrolment, so that the dormitories are practically unused. 2. Means of Transport 5.4 The project supplied a vehicle for each distrIct, 95 in all, so as to enable primary schools to be Inspected (paragraph 3.20). These vehicles, delivered from 1978 on, In fact enabled educational counsellors and primsry education inspectors to improve the quality  - 17 - of their services even before the opening of the CAPRs. At present, half of these vehicles are out of service and their replacement has not been provided for. The prrchase of two-wheeled transport, with aid from Unicef, has provided only a temporary solution and most of this transport is out of service. 3. Administrative Responsibilities 5.5 The opening of the CAPRs should enable the provincial authorities to take on wider responsibilities in implementing educational policy and in educational administration. In the event, decentralization to the provinces of ministry responsibilities has been limited: the DPESEBs have inherited the former responsibilities of the SPEs and to these have been added those of engaging staff and of distributing the budget within the global allocation of funds to a province. 4. Training Activities (Annex 15) 5.6 Besides their administrative responsibilities, the CAPRs were to have the tasks of training serving teachers of all levels and of training as teachers the BEPC holders who, after a three months course, were to be assigned to primary schools during the two years of their national service (VSN). The authorities foresaw the training from 1978 on, of about 9,000 VSNs a year, but recruitment was much more rapid than foreseen and the numbers reached more than 35,500 VSNs in 1981. This lack of coherence in the planning of primary education forced the Government to revise its primary teacher recruitment policy. To cope with the budgetary problems and the material and administrative constraints thus engendered, MINESEB decided to stop recruitment in 1982. The CAPRs, which were opened during 1981 to 1983 have not therefore participated in VSN training as was foreseen at appraisal, and training for primary education (level 1) is at present limited to a few in-service refresher courses for "animateurs" and educational counsellors. However, the CAPRs take part in the training of school leaving certificate holders ("bacheliers") who are called up for national service (ASNs). After courses of from 15 to 45 days these do one year of national service in the SFFs (level II). The CAPRs also give in-service refresher courses for secondary schc,l teachers of levels II and TII (Annex 15). In addition, the CAPR buildings accomodate MINESEB's examination commissions, MES meetings, preparatory meetings for the new school year, and discussion and seminars organized by other ministries. 5. Staff 5.7 DPESEB/CAPR staff, recruited wholly from teachers, are intended mainly for administration. The number of CAPR teaching staff is very limited and insufficient to achieve even very reduced educational training objectives. There is thus under-utilization of premises and educational equipment supplied by the project (paragraph 5.2 and Table 5.1). A new DPESEB organization chart (Annex 14) providing for the creation of four divisions, each comprising three or four sections for education and training is due to be put into force at the beginning of the 1985/86 school year.  - 18 - This should make it possible to increase training activities in so far as the posts described are in fact provided and the CAPRs are given the corresponding budget. Meanwhile, CUR secondary teachers are needed for refresher courses for secondary teachers of levels II and III, and the educational counsellors provide staff for the "animateur" refresher courses (level I) and ASN training. v. National Centre for Educational Materials Production (CNAP?AD) 1. Space Utilization 5.8 CNAPMAD was established to provide secondary schools with science equipment and educational materials as well as to design materials and make prototypes for primary schools. At the start of project implementation, the premises were designed for larger scale production than was foreseen at appraisal (paragraph 3.8) and the equipment supplied by the project corresponded rather to centralized industrial production (paragraph 3.22) than to the making of prototypes. Nevertheless, three years after their opening, the premises are once more too small. Schools' needs for teaching materials and their financial means are more substantial than was expec+ed. Further the Centre has begun production of school furniture, with resultant needs to extend the woodwork shop by adaptation of the storage building and to construct a new paint shop and a garage financed by FNDE. 2. CNAPMAD Activities 5.9 The Centre carries out research and studies on the production of educational materials in conformity with the school curricula laid down by MINESEB and in collaboration with a committee of teachers. Technical and pedagogical sheets accompany the materials, which are tested on the ground before mass production. Exhibitions are then held in the CAPRs on the use, handling and upkeep of the materials. Mass production has been progressively started with the arrival of national technicians and of machines, tools and accompanying equipment resulting from the second invitation to tender (paragraph 3.22). After three years of operation, four sections are now mass producing materials. Section Product Material used 1. Woodwork Individual training materials Local timber Group training materials Physics materials School furniture Educational games 2. Machines and Items for manufacturing the Metal bought tools foregoing productsl/ locally or imported 3. Glasswork Laboratory materials Imported pyrex Repair work glass 4. Electricity Electrical experimental Imported components and measuring materials 1/ Part of the production is sub-contracted abroad.  - 19 - 5.10 Other sections are to be established progressively such as: Galvanoplasty (to start in 1986) Ceramics Audiovisual technology (this cannot at present function owing to lack of equipment in the schools such as tape recorders and viewers and of teachers qualified in this field). 3. Staff 5.11 CNAPMAD is divided into five main services (Annex 16) and employs 112 persons of whom 34 are civil servants. Four heads of services received training fellowships financed by the project (paragraph 3.27) and several other technicians were trained by their counterparts from ORT technical assistance. French cooperation is at present financing technical assistance with an electrician and a glass technician to train national counterparts. 4. Sale of Products 5.12 Sales of materials produced by CNAPMAD are made through the five provincial CAPRs, in which the products are kept on permanent display. They are also made by PASCOMA (school insurance), a MINESEB body, which groups the orders from schools and forwards them to CNAPMAD. Direct sales are made too at the centre and during tours by its staff. 5.13 The products are mostly sold to public and private educational establishments but customers also include administrative bodies, research organizations, hospitals, wholesalers, state societies and individual users. 5.14 The sales of merchandise and finished products in 1985 is provisionally estimated at Fmg.133,424,oo0 (US$202,7OO) and distributed as follows: Individual training materials 39 000 000 Group training materials 24 000 000 Educational games 10 000 000 Glassware (for laboratories) 20 000 000 Electrical materials 3 000 000 Merchandise (chemical and other products) 20 000 000 School furniture 20 424 000 D. School Textbook Production 5.15 The project foresaw the provision of 1,500 tonnes of paper for printing school textbooks. Preparation of texts was to be done by the Curricula Studies Office (BEPOTP) and the printing was to be entrusted to the National Press. Further, the project foresaw the transfer to CNAPMAD of BEPOTEP's premises, which was old and unsuitable.  - 20 - 5.16 This programme uiderwent profound changes during project implementation. BEPOTEP now became SLP, installed itself in new premises before the construction of CNAPMAD began and became operational with the aid of equipment financed by the UNDP project MAG/79/002. Further, in view of the extent of the needs for school textbooks and of the delays caused through the National Press's production capacity being swamped, MINESEB in 1979 decided to establish a new press in CNAPMAD. To do this a credit amendment enabled the project funds allocated to buying paper to be used to obtain printing equipment (paragraph 3.23). 5.17 The printing shops financed by FNDE were completed in August 1984 and production began in 1985 with the printing of school end- of-year examination papers. 5.18 The purchase of pupils' textbooks is included in PASCOMA's annual school insurance premium and teachers' books are normally bought by the school's Board of Management or by the teachers themselves. This sales system should be kept when the books are printed by CNAPMAD's press. Production capacity has been calculated to be 150,000 copies a year of each of five titles. MINESEB foresees a start being made during the school year 1985/86 with the printing of three textbooks prepared by SLP and of a manual for teachers of French with aid from French cooperation. 5.19 The staff of the press consist of 16 members, three of whom were trained through fellovships financed by the project. E. Educational Planning and Statistics 5.20 This component of the project was to have comprised technical assistance by two experts to: (a) proceed to a rationalization of the education system within the context of decentialization; (b) draw-up an invenJory of schools; (c) introduce a system of data-processing. 5.21 The technical assistance in this component was in the end financed by UNDP's project MAG/79/002 and executed by Unesco for planning and rationalizing the reform. Some periodical reports mentioning the progress of decentralization were sent to the Bank but there has not been any real in-depth study of this matter. However, a seminar for training national planners was organized by MINESEB in July 1979 (paragraph 3.27) with Unesco participation. This seminar's impact was very slight since only one of the 18 participants is still employed by the Planning Directorate. 5.22 Items (b) and (c) of this component were dropped when project implementation began.  - 21 - F. Educational Evaluation 5.23 This component comprised the establishment of working groups as part of the organization of MINESEB's Planning Directorate to examine and evaluate: (a) regional services' administration and management; (b) a new primary education curriculum; and (c) VSN training programmes. 5.24 Of these three items only (b) has been implemented. An evaluation of the education system was made in March 1983, thanks to Unicef financing. A sector study was made in 19TT with Unesco assistance and was up-dated in 1978, but so far the manuscript has not been been printed. In addition, three study tours were financed by the project for staff from CNAPMAD and MINESEB (paragraph 3.27). G. Project Administration and Pre-Investment Studies 5.25 Project implementation results have been described in Chapter II. Pre-investment studies for a third project are to be made after the second project's completion mission. A new sector study which is envisaged will serve as a basis for identifying future projects to be financed from external sources. B. Cyclone Damage 5.26 The emergency programme for the repair of damage caused by the cyclone was for the greater part implemented during the period August 1984 to May 1985 and enabled numerous schools in the regions affected to be made good. Funds were provided by the project for the repair of 20 of them and 18 have been so far made good (paragraphs 3.12 and 3.13). A more exact initial estimate of repair costs would however have enabled not only a more extensive programme to be financed from the credit but the complete amount anlocated to these workE' to be withdrawn before closure of the credit.  - 22 - CHAPTER VI CONCLUSIONS AID IMMENDATIONS A. Conclusions 6.1 The IDA credit was closed on 31 December 1984, three years behind schedule. The total cost of the project was slightly below appraisal estimates owing to the rise in the dollar exchange rate during the last years of implementation. 6.2 Of the six components foreseen at evaluation, two have attained their objectives (CNAPMAD and technical assistance), and four have partially attained them - the CAPRs, school textbooks, educational planning and education management. A seventh component, cyclone damage repair, added to the project attained its objectives in part. 1. Provincial Academic Centres 6.2 The physical part of the CAPRs has not yet been entirely completed but the five centres are now operating. It may, however, be mentioned that the buildings are already in urgent need of maintenance and repair of defects. Further, most of the equipment has not been installed and remains unused. 6.4 The educational part of the CAPRs has been distanced from the original objectives since recruitment of VSNs was stopped. Further, the teacher training and refresher courses are still occasional and inadequate for a real improvement in the quality of teaching in the provinces. 6.5 The administrative component of the CAPRs and DPESEB has partly attained its objectives with the transfer to new buildings of the educational services and their re-grouping. On the other hand, delegation of administrative responsibilities to the provincial level is still far less extensive than f)reseen in the decentralization objectives. 2. CNAPMAD 6.6 CNAPMAD's initial objectives were extended to the industrial production of educational materials, requiring larger premises and more equipment than was foreseen at appraisal. After three years of operation the new production targets have already been surpassed and the directorate foresees financial autonony in 1988. 3. School Textbook Production 6.7 Despite substantial changes during project implementation the textbook production unit is nov ready to function and should be able to attain financial autonony within five years.  - 23 - 4. Educational Planning and Evaluation 6.8 Activities on these two components have stayed very limited and have in part been transferred to UNDP financing for technical assistance and to Unicef financing for the evaluation of basic education. 5. ProJect Administration 6.9 The efficiency of the Project Unit has been seriously hampered by the lack of solid support from the authorities: a number of officials have been designated as members of the unit but few of them have been available or employed full-time. 6. Technical Assistance 6.10 The Technical Assistance and training fellowships financed by the project were all given to CNAPMAD and the printing press. Better distribution of assistance over the whole project would have allowed a more balanced development of the other components - especially educational planning and evaluation for which the appraisal report foresaw 48 man/months of specialists. These were not implemented. B. Recommendations to the Government 6.11 Future proJect management: to strengthen the project's administrative and management capacity the Government should: (a) define exactly the authorities responsible with their responsibilities and areas of action; (b) define the responsibilities and tasks of any future project unit, and those of each member of its staff; (c) supply the material, financial and administrative means corresponding to the tasks to be accomplished; (d) recruit the competent full-time staff needed to perform the project tasks; (e) determine beforehand the administrative channels and procedures to be used for project implementation; (f) give the project unit the means needed to organize and control implementation in the provinces. 6.12 CAPRs: the Government should provide the financial means and human resources required for the CAPRs' sound functioning, especially in respect of: (a) finishing off construction and making good defects; (b) maintenance of buildings and equipment; (c) preparing and conducting real teacher training and reftesher courses; (d) using materials and equipment stocked in the workshops; (e) replacing vehicles out of service; (f) providing documentation and books needed for training courses and; (g) determining administrative decentralization procedures. 6.13 Construction: the Government should not accept the selection of mediocre materials to reduce the cost of tenders when these exceed  - 24 - the funds assigned. It would be preferable, and in the end less costly, to look for savings by reducing the building programme and/or to seek more economical technical solutions. 6.14 Educational Planning: the development of educational reform requires a speeding up of the establishment of central and provincial services capable of colleding and analyzing statistical information with a view to defining educational objectives and programmes. C. Recommendations to the Bank 6.15 Project Preparation: the Bank should insist with the Government that aU the points mentioned in paragraph 6.10 about the pro'ect unit should be well-defined and clarified at the preparation phase. Later any modifications in the administrative context should entail adjustment or re-definition of authority and responsibilities. 6.16 Supervision Missions: the specialist composition, the frequency and the size of future supervision missions should be more adjusted to weaknesses and difficulties in the project. Further, more frequent visits to construction sites should make it possible to avoid costly errors in the choice of materials and construction. 6.17 Building design: the Bank should exercise a better control over plans and specifications, especially when it is a matter of using local materials, so as to avoid technical errors which could later entail costly repairs.  - 25 - Annex 1 Page 1/2 ?ER,ONS MET Ninistere des Travaux publics Lieutenant Colonel V. RAMAHATRA, Ministre des Travaux publics Mr. R. RASAFA, Pr6sident Comit6 National de Coordination des D6gats cycloniques, Architecte M. RODRIGUEZ, Comite National de Coordination, D6g4ts cycloniques *M. F. RANAIVASON, Comptable, Comite national de Coordination D4gits cycloniques Bureau du Projet Nme H. ANDRIANOLIS, Directeur M. S. RAZAFIMAHEFA, Coordonateur/Directeur CNAPMAP Mme A. C. RABODOMALAIA, Relations ext6rieures M. A. RAZAPINDRAZAKA, Comptable M. N. RAMAMONJIJOA, AdJoint technique, Travaux publics. Minist6re de l'46ducation et de base (MINEEB) M. C. ZENY, Ministre de l'Education M. ANSOUMARI, Directeur de la planification Commission Nationale Unesco M. H. RAHARIMANANTSOA, Secretaire g6neral Province d'Antsiranana M. J.P. TOTOBESOLA, Pr6sident du Comite executif de la Province M. BOTSILAZA, Directeur DPESEB M. R. BERTIN, Chef CAPR M. J.M. TC4W)RAVO, Service statistiques DPESEB M. ADAMA, Responsable mt6riel DPESEB M. M. BESILY, Chef comptabilite M. J. RAKOTODRIVONY, Adjoint technique SEIMAD Mme S. RAVELONJANAHARY, Ing6nieur Travaux publics M. N. RABENIMANANA, TP/SEIMAD, D6g&ts cycloniques M. H. RAJAOMARISAOM4, TP/SEIMAD, D6g&ts cycloniques  - 26 - Annex I Page 2/2 Province de Planarantsoa M. A.P. RAKOTONJANEHARY, Dlrecteur DPESEB M. B. RAKOTONIRINA, Chef CAPR Province de MahajungR. M. P.B. INDRIANIHAJA, Directeur DPESEB M. G. RAKOTONDRAMANANA, Chef Division financi6re DPESEB 4. P. RAKOTONDJAHARY, SEIMAD M. L. RAZAFINTSALAMA, SEIMAD M. P. NDEHA, Responsable formtion, DPESE8 M. M. MBELO, Responsable animateurs p6dagogiques M. B. A. SOUDJAY, Adjoint charg6 du CPAR Province de Toamasina M. N. FENO, Directeur, DPESEB Province de Toliary M. B.C. BABANY, Directeur DPESEB M. NELY SELPA, Adjoint Chef CAPR Banpue mondiale. Antananarivo M. P. BLAY PNUD 14. 0. JANNONE, Representant Resident M. le Representant r6sident adjoint Mme RAKOTOmMAIAIA, charg6 de programme Banque mondiale Washin4ton Mr. S. SCEARCE, Directeur - Division Afrique de l'Est M. A. COLLIOU, Economiste - Division Afrique de l'Est Mme J. VIAL, Economiste - Division Afrique de l'Est M. J. MAC CABE - Educateur - Division Afrique de I'Est  .C@.OlN Di C1U>W' 10.32.76 .P%wU* V%ftuuu 15.Ob.77tT -gm r ow a . , 31.12." [ CA.D.R AC 114w 2 ) % d % 5 s4 C _'554 | _ a I _ _ 4 _ _ 2I54 _ Z II S 2 I aS 4 2a zi __. _-S--s_ I _j I ._- _ M1_at_ eEL tle igEftwe LC- -~~~.nt&ee.p _ _______* - _ -__ -T - - _ ~~~&. _*.e. _- _- ______}*I ni1 lar/B_zllt~~~~~~ * - . --= - _ ._--. - - = - = - - - - --= = = -f__=_z i i i i S St Us t 0 0 - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -- -- - - -~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~t  Iia~p1menation of Credit Aremnt uovenmnts Accord Clauss Statudi/ R Q 3.02 Etablissement des CAPR R D6vr&t minIst6riel du 9 avril 1977 3.03 Etablissement du CNAPMAD et mlse a dispositlon de R sttut, legnl approuv6 en aoftt 19T8; personnel, de toods et d'installations recrutement tardif du Directeur 3.04 Etablisseeent du bureau du projet avec un coordinateur PR L'rchitecte a quitte le bureau du projet architecte & plein temps. des 1977. D6signation et efficacit6 des personnels d'appui. Manque de dtsponibitlte du personnel d'appui. 3.05 EsploI de bureaux d'etudes R _ 3.o6 Emplol de sp6cIaltstes pour le CRAPMAD R Formtion de specialistes a l'aide de l'AssIstance technique. O.R.T. 3.07 Evaluation de 1'enseignement PR Seule une evaluation du srstene de 1'education de base a ete etfectu&e sur lee fonds de 1'UNICEF. 3.08 Evaluation des r#sultats et de l'impect du PR Le rapport final dorme une #valuation iproJet avant Ja date de cl6ture. de la partie physique du projet et de l'assistance technique. 3.09 Utilisation des 4quipements et des services R Une partie des tonds a ete utillse pcur finaw,cs par le projet les d6gats cycloniques avec 1'accord de IIs Blanque. 3.11 AcquIsitIon des terrains R - 4.02 lronctionnement, entretien et r6paration des PR Les r6parations du CAPR de Mahajunga sont b&timents et des 6quipeuents du projet fInanc6s par le budget des d6gats cyclo- niques, mais rien n'est encore pr4vu pour le CAPR de Toarsiina. 4.03 Infornations & fournir concernant la d6centrallsation PR La d6centralisation a ete tr6s lente et les lnformations fournies peu pr6cises. LI R :reaplie PR : artlellement reoplie x4  - 29 - Annex 4 page 1/7 - - - -|- - - - - - - - - - - .- - + + _ I __Z 9 I ------------------------_ N , | a s 2 ^ q o l ll - | S~~ N 4 N4 .4 4 I)} a-I } ' 34 *1 i '4 . . , - . 4. . c  - 30 - Annex 4 CAPR DE LadMABMITSOA page 2/7 D6signation des l'mbre N2 utie U2 Utiles Nahbr* N? utiles N2 utiles N; ut:ex t locaux /bitV nt.l /uelt totsl 1. Adxlnlstratton et tnaisuewet Brau directeur 1 30 30 1 32,50 *2,50 *8,33 8ecr6tariat SAIle d'attente 1 20 20 1 19,60 - 0,40 - 2,00 Pool 8eerhtarht 2 30 60 2 52,50 - 7,S0 12,50 Bureau - Cbet dee rviee 5 1S 75 5 80,50 * 5,00 .6,66 Courrler 1 15 15 1 15,00 - - Archives 1 so 50 1 48,85 - 1,15 2,30 T'rae 1 50 50 1 31,25 -E,75 37,50 Budget eot ctes 1 25 n 1 22,10 - 290 -11,60 Trawsport 1 10 10 1 10,00 - - Soldes et i0demit6a 1 20 * 20 1 31,2S * 11,25 * 56,25 Personnel 3 20 60 3 15,00 - 1500 - 25,00 Gestlonnaire 1 15 15 1 15,00 Bureau de gaatlon 3 15 '5 3 17,60 * p uO * 5,77 Stattatiques 1 20 20 1 25,00 * 5,00 * 25,00 Etudes et 1 20 20 1 20,00 - - Production mt#rie didactIque 1 20 20 1 20,00 - - P.yc1o OrIStatioc 1 20 20 1 20,00 - - Pomtlon, hla- tlon et recbrche 3 t0 60 3 60,00 - Rnselaent auPlreur 2 20 h0 2 4Q000 Audio visueVPboto I 100 100 1 159.05 * 59505 59,05 Atelier pclvalent 1 150 150 1 115.00 - 35,00 - 23,33 Stockage bosa 1 50 50 1 50,00 - - Namssn ki6ral 1 100 100 1 12504 * 25,04 * 25,04 Salle protesseurs 1 60 *0 1 41,25 *: 25 * 3,12 Salle de cours 2 60 120 2 146,00 + 26,00 * 21,66 Ib1iothique 1 90 90 1 116,3? * 26 37 + 29,38 Salle p1valsnta 1 300 300 1 299,13 - 0,87 - 0,29 Standard t0l6pbou 1 10 10 1 10,00 - - Rensiagna e ts 1 7 I 1 15,00 * 6o00 114,28 Inrfirarle 1 20 20 1 31,25 * 11,25 * 56,25 Surthca utile - - 164* 1 743,74 * 101,7 * 6,25 Nun at eirculation - - 657 828.38 * 171,38 * 26,08 WML Surface no. - - 2 299 2 572,12 * 273,12 * 11,87