Togo - Education Project

FOR OMCIAL USE ONLY THE WORLD BANK Washington. DC 20433 USA Offie o>f rctortGewfa Opeatmn [Valuatmi October 25, 1988 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Completion Report: Togo - First Education Project (Credit 1018-TO) Attached, for information, is a copy of a report entitled "Project Completion Report: Togo - First Education Project (Credit 1018-TO)" prepared by UNESCO and revised by the Africa Regional Office. Under the modified system for project performance auditing further evaluation of this project by the Opecations Evaluation Department has not been made. Attachment This document has a restricted distribution and may be used by recipients only iu the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  FOR OFFICIAL USE ONLY PROJECT COMPLETION REPORT TOGO FIRST EDUCATION PROJECT (CREDIT 1018-TO) TABLE OF CONTENTS Page No. Preface Key Project Data ii Evaluation Summary vii Chapter I - Project and Credit Agreement 1 Socio-economic Setting 1 The Education Sector - Problems and Strategy 1 Project Generation 2 Description of the Projet 2 Objectives 2 Project Components 3 Special Covenants of the Credit Agreement 4 Amendments to the Credit Agreement 4 Chapter EI- Project Implementation 5 Overview 5 Project Administration 5 Project Management 5 Construction - 7 Maintenance of Premises 7 Furniture and equipment 8 Utilization of Premises 8 Technical Assistance 9 Chapter HI - Costs and Disbursements 10 Costs 10 Costs by Category of Expenditure (Table 3.1) 11 Financing 13 Disbursements 13 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 dischosed without World Bank authorization.  Table of Contents (Contd.) Page Chapter IV - Project Institution Operation 14 Overview 14 Primary Teachers Colleges 14 Directorate of Educational Research and Teacher Training 17 National Institute of Agricultural Training 20 Chapter V - IDA Performance 24 Project Generation 24 Project Implementation 24 Chapter VI - Conclutsions 26 List of Annexes 28 ATTACHM ENS I AND II - Comments from the Borrower 49-50  (i) PROJECT COMPLETION REPORT TOGO FIRST EDUCATION PROJECT (CREDIT 1018-TO) PREFACE This is a Project Completion Report (PCR) for the First Education Project in Togo, financed by the International Development Association (IDA) through a Credit Agreement which was signed on September 15, 1980, and became effective on January 27, 1981. At appraisal the total cost of the project was estimated at US$16.8 million, with financing cf $11 million from IDA, $3.1 million from the French Aid Agency (FAC), $2 million from the Saudi Development Fund and $0.7 million remaining in the IDA Credit Account was cancelled and the account closed. Unesco accepted the invitation of the Government to send a mission under the Co-operative Agreement between Unesco and the World Bank to prepare this report. The mission comprising Mr. Andre Elkrief, agricultural education specialist (mission coordinator) and Jacques Waechter, consultant architect, visited Togo from November 9 to 21, 1987. In preparation for field work, the relevant files of IDA were reviewed by Mr. Waechter and discussicns were held with available IDA staff knowledgeable about the project. In Togo, the mission collected additional data, held meetings with the relevant authorities and visited project institutions. This report is therefore based on the file research, field observation, discussions held with IDA and country officials and meetings held with the French Aid Agency (Fonds d'aide et de cooperation - FAC) representatives in Paris and in Togo. The valuable cooperation and assistance provided by the Government and Bank staff in the preparation of the report is gratefully acknowledged. In accordance with the revised procedures for project performance reporting, this PCR was read by the Operations Evaluation Department (OED) but the project was not audited by OED staff. The draft PCR was sent to the Borrower and its agencies, as well as the two cofinancing agencies for comments in August 1988. An English translation of two telexes received from the Borrower are reproduced as Attachments I and II.  (ii) Project Completion Report TOGO First Education Proiect Credit No. 1018-TO BASIC DATA Rey Project Data Appraisal Estimates Actual (Taxes Incl.) (Taxes Excl.) (Taxes Excl.) Total Project Cost - In US $ (million) 20.0 16.8 16.3 Underrun (Z) 3.0 - In CFA Francs (million) 4,200.0 3,532.0 6,026.0 Overrrun (2) 71.0 IDA Credit Amount (US $ million) 11.0 11.0 - Disbursed 10.8lI - Cancelled on January 25, 1988 0.2 - Repaid - - Outstanding 10.8 Date Physical Compor AtS Completed March 30, 1983 January 1984 - Proportion completed by 90.0 above date (Z) - In months since Credit Agreement 30.5 40.5 - Overrun (Z) 33.0 Date of Overall Project Completion June 30, 1984 June 30, 1987 - Proportion completed by 72.2 above dates (2) - In months since Credit Agreement 45.5 81.5 - Time overrun (Z) 79.0 Institutional Performance Good Fair Cumulative Estimated and Actual Disbursement (US $ thousands) Fiscal Year 1981 1982 1983 1984 1985 1986 1987 1988 Disbursement Estimate 1,200 4,350 9,550 10,900 11,000 11,000 11,000 11,000 Actual 407 2,518 5,557 7,617 8,434 9,318 10,719 10,814 Actual as Percentage of Estimate 33.9 57.9 58.2 69.9 76.7 84.7 97.4 98.3 1/ This amount includes PPF withdrawal.  (iii) Other Project Data Original Revisions Actual Plan First Mention in Files 9 Jan. 75 Government's Application 22 Dec. 77 Negotiations 18 Mar. 80 Board Approval 13 May 80 Datn of Credit Agreement 15 Sept.80 Effectiveness Date 15 Dec. 80 27 Jan. 81 Closing Date 30 June 85 30 June 86 31 Dec. 86 30 June 87 25 Jan. 88 Borrower Republique of Togo Executing Agency Ministry of National Education and Scientific Research (MENRS) Fiscal Year of Borrower 1 January to 31 December Follow-up Project Name Second Project - Education Improvement Credit Number 1568-TO Amount (US $ million) 12.8 Date of Credit Agreement 29 April, 1985 STAFF INPUT (Staff weeks) FY 76 77 78 79 860 81 82 88 84 85 86 87 Total Pr_- appraisal 18.8 8.1 46.6 9.6 0 - - - - - - 76.6 Appraisal - - - 60.9 81.7 - - - - - - - 82.6 Negotiation - - - - 10.8 - - - - - - - 10.8 Supervision - - - - 2.2 16.9 7.4 8.9 8.6 2.6 4.6 8.9 64.0 Total 18.8 3.1 46.6 60.6 44.8 15.9 7.4 8.9 8.6 2.6 4.6 8.9 228.6  (iv) COUNTRY EXCHANGE RATES Name of currency: CFA Franc (CFAF) 1/ Exchange rate fluctuations- Appraisal Year (1980) 1 US $= 210 CFAF Intervening Years Average 1 US $ = 370 CFAF Completion Year (1987) 1 US $ = 285 CFAF 1/ Exchange ra.e fluctuations: December 1980 1 US $ = 231 CFAF June 1981 1 US $ = 286 CFAF December 1981 1 US $ = 288 CFAF June 1982 1 US $ = 345 CFAF December 1982 1 US $ = 350 CFAF June 1983 1 US S = 370 CFAF December 1983 1 US $ = 423 CFAF June 1984 1 US $ = 424 CFAF December 1984 1 US $ = 479 CFAF June 1985 1 US$= 466 CFAF December 1985 1 US $ = 384 CFAF June 1986 1 US$= 349 CFAF December 1986 1 US $ 322 CFAF June 1987 1 US $ = 298 CFAF November 1987 1 US$= 285 CFAF  (v) MISSION DATA Missions Sent by Month/ No. of No. of Staff Date of Year weeks persons weeks report ldentification Unesco June 75 3 4 (Ag,E,GE,TE) 12 Nov. 75 Preparation Unesco Dec. 77 3 5 (A,Ag,TE,GE,E) 15 Dec. 77 Post-preparation IDA Feb. 78 1 1 (E) 1 15 Mar. 78 Pre-appraisal IDA May 78 1 3 (Ag,GE,E) 3 16 May 78 Appraisal IDA/Unesco Oct/Nov.78 3 5 (A,Ag,E, E,GE) 15 18 April 80 Post-appraisal IDA March 79 1 1 (A) 1 22 Apri 1 79 Total 47 Supervision 1 IDA July 80 1 1 (A) 1 15 Aug. 80 2 IDA Oct. 80 1 1 (A) 1 10 Dec. 80 3 IDA Feb. 80 2 3 (A,Ag,GE) 6 23 Mar. 80 4 IDA Sept. 81 1 1 (A) 1 19 Oct. 81 5 IDA Feb. 82 1 2 (A,GE) 2 5 Mar. 82 6 IDA Nov. 82 1 3 (Ag,E,E) 3 19 Nov. 82 7 IDA May 83 2 4 (A.Ag,E,GE) 8 20 June 83 8 IDA July 83 1 2 (A,GE) 2 3 Aug. 83 9 IDA Nov. 83 2 3 (Ag,E,GE) 6 6 Dec. 83 10 IDA Nov. 84 1 2 (E,GE) 2 10 Dec. 84 11 IDA June 85 1 1 (A) 1 29 Aug. 85 12 IDA March 86 1 1 (EP) 1 1 April 86 13 IDA May 86 1 1 (A) 1 3 June 86 14 IDA Nov. 86 1 2 (A,A) 2 16 Dec. 86 15 IDA Jan. 8? 1 1 (EP) 1 17 Feb. 87 Total 38 Completion Unesco Nov. 87 2 2 (A, Ag) 4 Grand Total 89 Legend: A = Architect Ag = Agricultural Training Specialist E Economist GE = General Educator TE Technical Educator EP Educational Planner  (vi) Allocation of Credit Proceeds USS) Category Original Revised Actual Allocation Allocation Disbursement (24 Feb 1984) 1. Civil Works 5,500,000.00 5,500,000.00 6,052,393.99 2. Furniture 400,000.00 400,000.00 445,108.88 3. Equipment 1,600,000.00 1,600,000.00 1,269,355.58 4. Specialist services 900,000.00 900,000.00 433,757.80 5. Fellowships & training 90,000.00 1,690,000.00 2,003,481.25 6. Operating costs 200.000.00 200,000.00 232,905.97 7. Reimbursement of advance 414,000.00 414,000.00 376,745.02 8. Unallocated 1,896,000.00 36,000.00 0.00 Special fund 0.00 260,000.00 .0.00 Amount disbursed 10,813,748.49 Amount cancelled 186,251.51 Total 11,000,000.00 11,000,000.00 11,000,000.00  (vii) PROJECT COMPLETION REPORT TOGO FIRST EDUCATION PROJECT (CREDIT 1018-TO) EVALUATION SUMMARY Introduction i. This project, being the first Bank Group operation in Togo in the field of Education took substantially more time than the average project between Identification, Appraisal and Board Presentation. In fact, the Identification mission was carried out in 1975, the Appraisal mission by end 1978 and Board Presentation in May 1980. The total cost of the projei-t was estimated to be US$20.0 million, including US$11.0 million from IDA, US$3.1 million from the French Aid Agency (FAC), US$2.0 million from the Saudi Development Fund, and US$3.9 million from the Government of Togo (Preface, paras. 1.01 and 3.07). Obiective and Content of the Project ii. The objective of the Project, designed in conformity with a comprehensive Education Reform Plan, was to help the Government to: (a) improve the quality of primary education; (b) provide skilled manpower for agricultural development; and (c) strengthen the institutions responisible for primary education and the training of agricultural mF-"'ower. A further aim was to consolidate the management of the education system as a whole. Co-financing was provided by FAC and the Saudi Development Fund (paras. 1.08 and 1.09). iii. At Appraisal, the Project was expected to be completed over a periud of 45.5 months and comprised: (a) construction and equipping of two primary teachers colleges (ENIs), each with 360 student places; (b) construction of and equipping physical facilities and providing technical assistance (expert services and fellowships) for the upgrading of teachers, and the operating funds to enable the Directorate of Education Research and Teacher Training (DIFOP) to undertake the in-service training of primary school teachers, training for school supervisors, pedagogical advisers, and teacher trainers, and curriculum development; (c) the extension and strengthening of the National Institute of Agricultural Training at Tove (INFA) in order to train agricultural staff, teachers of agriculture for secondary schools and agricultural advisers for primary schools; (d) the preparation of educational projects suitable for external funding; and (e) technical assistance expertise, fellowships and operationEl expenses for Project implementation (para. 1.11). Implementation Experience and Results iv. The implementation of the Project, which was spread over a period of 81.5 months (a 79 per cent time overrun) was generally satisfactory. The time overrun was due mainly to some additional work undertaken in training and new construction; this work was financed through "savings' resulting from the favourable trend in the dollar/FCFA exchange rates during the initial implementation period. The major problem encountered was the under-utilization of educational facilities, due in large measure to financial difficulties encountered by the country which led to the freezing of recruitment into the civil service, including a temporary suspension of pre-service training in the ENIs, and the discontinuation of appointments of teachers to the demonstration classes in those institutions. The Second Education Project will benefit only partially from the experience and training acquired by the personnel responsible  (viii) for implementing the First Education Pr.4ct, because of transfer and promotion of implementation staff (para. 2.05). v. Because of exchange rate trends, despite the considerable extension of the implementation period and the financing of additional operations, there has been comparatively little change in the overall cost of the expanded Project in US dollars (minus three per cent) compared with the Appraisal forecasts. By contrast, there has been a 71 per cent cost overrun in terms of CFA francs (para. 3.01). vi. As regards primary education, the limited pre-service training accomplished covered 245 primary school teachers to replace teachers undergoing in-service training, 26 teachers trainers for the primary teachers colleges (ENIs), and 56 inspectors and 66 pedagogical advisers. The in-service training activities within the Primary Teachers Colleges, at DIFOP and in the regional inspectorates, were devoted to the upgrading of teachers and other educational staff. These in-service training activities assumed a much greater importance than had been anticipated at Appraisal, since they sought to make up for the very limited pre-service training (paras. 4.04-4.11 and 4.21). vii. DIFOP activities, assisted particularly by support from FAC and a UNDP- Unesco project, have been very successful in training teachers through educational television, in curriculum development and in the production of teaching aids. This institution, with more specialized staff and better facilities provided under the Project, is now in a better position to accomplish its tasks. The implementation of this comp.nent, however, suffered from insufficient collaboration between FAC and DEPE. viii. At INFA in Tove, pre-service training of agricultural staff was fully achieved in regard to extension workers (grade C). It was, however, only partially completed for middle level agricultural staff (grade B). The planned training for higher level agricultural staff (grade A2) was not done in spite of the pressing need. The limited achievements in training were due to the budgetary constraints of the public sector which is practically the only outlet for graduates. Some in-service training for professionals in grade C is now being provided (although not planned for at Appraisal) and seminars have also been organized for training professionals in groups in the rural sector. This achievement shortfall in agricultural training is similar to those in other Bank/IDA financed projects with components in secondary level agricultural education arid training. In many of these projects, the design was flawed in that it was based on an overestimate of the capacity of the public and private sectors to absorb the graduates of such institutions. ix. The INFA training course included in the Project to prepare persons as agricultural teachers in secondary schools was not implemented because of (a) budgetary constraints and (b) deletion of the agricultural secondary scl.ools from the Project. Agricultural training in some lower secondary schools was nevertheless launched and developed through co-operation with the USA Peace Corps in Lome. Finally, INFA, which has benefited from a UNDP-Unesco project and technical assistance from FAC, as well as from this Project, has become a well.. organized and adequately-equipped institution capable of meeting the rural sector needs in human resources development. However, because of the Government financial crisis, it is under-utilized (paras. 4.32-4.36).  (ix) x. In view of the freeze in recruitment for the civil service in 1983 when the physical components were co.dpleted, the objectives of the Project in regard to pre-service training of agricultural and education personel have been only partially met. By contrast, the activities connected with the in-service training of teachers and educational supervisors in primary education have far exceeded targets. How far the raising of the qualifications of the personnel concerned has improved the quality of teaching is a matter which current follow- up activities should be able to assess with some degree of accuracy. xi. As far as IDA performance is concerned, in hindsight it seems clear that this Project - the first in the sector in Togo - should have been preceded by thorough sector analysis which would have clarified some aspects of the Reform Plan. IDA supervision was satisfactory except in that it failed to identify and correct in a timely manner problems relating to equipment, training of teacher trainers to handle audio-visual material and the overgenerous allowances paid to in-service trainees and the insufficient coordination between FAC and the Project Implementation Unit, DEPE. It would also have been helpful if IDA has (a) assisted DEPE to design a means of maintaining Project accounts so as to enable unit costs and costs per Project component to be determined readily, and (b) provided guidelines to DEPE on the objectives and content of a Project Completion Report (paras. 5.01 - 5.05). Sustainability xii. It is expected that once the country's budgetary stringency has bean eased and current restrictions on teachers recruitment have been lifted, the activities developed under the project for primary education will become fully sustainable. However, regarding agricultural training, developments in the labor market will have to be closely followed to determine whether it is necessary to proceed with program revisions and curriculum adjustments in order to secure that project investments are effectively utilized in a sustainable manner. Findings and Lessons xiii. In hindsight it is clear (a) that the Reform Plan and the cost and financing of the education and training system (whether reformed or not) required thorough scrutiny; (b) that more importance should have been accorded to sector analysis as a basis for determining a lending strategy, especially since this was the first education sector operation in the country; (iii) greater caution with secondary level agricultural education and training in which the capacity of the labour market (including the Government job market) to absorb the outputs has been often overestimated, should have been exercised especially in the light of experience in other countries.  - 1 - PROJECT COMPLETION REPORT TOGO FIRST EDUCATION PROJECT (CREDIT 1018-TO) CHAPTER I THE PROJECT Socio-economic Setting 1.01 In 1980 Togo had an estimated population of 2.5 million, including two million in rural areas, unevenly distributed among the five regions of the country. Two thirds were concentrated in the south, where density was as high as 100 inhabitants per square kilometre. There were also numerous ethnic groups speaking various languages. Ewe (20.76 per cent of the population) in the south and Kabye (13.89 per cent) in the north being the two major languages. The annual population growth rate was approximately 2.5 per cent. - 2.1 per cent In rural areas and five per cent in urban areas. Approximately 50 per cent of the inhabitants were aged 15 and under. 1.02 In 1980 Togo was a low income country classified among the Least Developed Countries. It had a GDP per capita of US$380 (only S180 in the rural areas), of which agriculture comprised 30 per cent and employed 80 per cent of the work force. The main feature of farm organization was the predominance of small holdings; their yields were low but these holdings nevertheless accounted for 70 per cent of agricultural production. Industrial crops (cocoa, coffee, palm nut and, more recently, cotton) had been developing gradually and provided 30 per cent of the country's foreign currency earnings. Phosphate mining, which employed 1.600 people, accounted for only six per cent of GDP but provided 40 per cent of foreign exchange earnings and 30 per cent of the revenue. The tertiary sector comprised mainly commercial activities, transport and services. It furnished 50 per cent of GDP and employed 15 per cent of the working population. 1.03 The decline in phosphate prices led the Government in 1979 to adopt an economic austerity programme aimed at reducing public expenditure in real terms and reducing commercial borrowing for three years. AS the country possessed real potential for the expansion of agriculture, mining and services, the long-term prospects were comparatively favourable. The Education Sector - Problems and Strategies 1.04 The Ministry of National Education and Scientific Research (Nlnist6re de l'Education nationale et de la recherche scientifique - MENRS) Is respon- sible for all types of school education and training, including curricula which, though managed by the technical ministries, are still subject to ultimate review. The Ministry of Rural Development (Ministere du developpe:nent rural - M4DR) is in charge of the training of agricultural staff. The Directorate of Agricultaral Education and Training (Direction de l'education et de la forma- tion agricoles - DEFA). established in keeping with a proposal by the IDA Appraisal mission, is responsible within the MDR for questions relating to agricultural education and training.  1.05 The Project was designed with a view to helping to implement the educational reform adopted by the Government in 1975, the purpose of which was to solve problems arising in the areas of management, access, efficiency and quality. The measures adopted in the context of the reform comprise: the Introduction of two national languages in primary education, curricula geared towards more practical training with emphasis on natural science and agriculture, the extension of teacher pre-service and in-service training programmes, technical training and basic education for adults and marginalized groups, and finally, more prudent management of the education system. 1.06 With the rapid expansion of the education system, the share of education in the country's recurrent budget increased from 24 per cent in 1974 to 27 per cent in 1978, and fell to 17 per cent in 1980. The unit costs (to Government) of education are low because of high student:teacher ratios, low salaries paid to teachers and contributions from parents and village communities which largely finance the building of primary schools and supplies of teaching material in rural areas. ProJect Generation 1.07 The Project constituted the first intervention by the Bank Group in the education sector in Togo. In response to IDA interest in sending a sector study mission in 1974, the Government, which was interested in a project that would consolidate a reform of the system, requested a delay so as to permit it time to decide on the reform. Following the reform decision of early 1975, Unesco sent a project identification mission in June 1975, followed by a Unesco preparatory mission in December 1977. The sector study to assess the reform in depth and to review the options did not take place. The Project was then appraised by an IDA mission which visited Togo in October/November 1978. Project Preparation facilities were withdrawn prior to the Credit Agreement which was signed on 15 September, 1980. The total cost of the Project was estimated at US$20.0 million. Description of the ProJect ObJectives 1.08 In Its final form, the Project addressed the country's educational needs and reflected the content and the approaches specified in the Reform plan. It was also well adapted to the country's development objectives stratpgy. 1.09 As set forth in the Appraisal report, the Project was aimed at helping the Government to: (a) improve the quality of primary education; (b) train skilled personnel to ensure the development of the agricultural sector: and (c) strengthen institutions responsible for primary education and the training of agricultural staff The idea was to widen access to education, particularly in rural areas, and to consolidate the management of the system as a whole. 1.10 The support given to primary education was justified by the intrinsic importance of that particular level, the quality of which conditioned that of the other levels. The increase in student numbers required an increase in  - 3 - instructors constituted an obstacle to the development of the rural sector to which the Government attached considerable lmportance. Consequently, the Project was designed to support agricultural education and the training of staff required in the rural sector. Technical assistance, involving expert services and fellowships; was included to contribute to attaining these various objectives. Prolect ComDonents 1.11 The Project was to be implemented over a period of three and a half years (January 1981-June 1984), and Included the following specific components: (a) Primary Education (1) Construction and equipping of two primary teachers colleges (ENIs). each with 360 places, including 240 for pre-service teacher trainees and 120 for existing teachers undergoing in- service training; (11) construction and equipping of physical facilities, expert services, fellowships for further training and operational funds to enable the Directorate of Educational Research and Teacher' Training (Direction de la formation permanente et de l'action et de la recherche pedagogiques - DIFOP) to carry out upgrading activities for primary school teachers, training for school inspectors, peda- gogical advisers and secondary school teachers as well as curriculum development. (b) TralninE of Agricultural Personnel and Agricultural Teachers The construction and equipping of physical facilities, required to extend the capacity of the Agricultural Vocational Training Centre (Centre de formation professionnelle agricole - CFPA) In Tov6 (which was to become the National Institute of Agricultural Training - Institut national de formation agricole - INFA) from 290 to 430 places, expert services and fellowships for in-service training so as to provide training for agricultural personnel, teachers of agriculture for secondary schools and agricultural advisers for primary schools. (c) Preearation of Projects Expert services, fellowships and operating funds required to prepare projects for external financing. (d) Project Management Equipment, expert services. fellowships for in-service training and operating funds required for the Project Unit.  -4- Special Covenants of the Credit Agreement 1.12 Credit Effectiveness was conditional on: (a) the Borrower crediting a bank account in the name of the Project Unit with the sum of CFAF21,000,000; (b) the signing of the "Convention de Financement" between the Republic of France and the Borrower; and (c) the signing of the Agreement relating to the Saudi Grant (Annex 1). Disbursements against the INFA component were conditional to the issue of a Government Decree establishing INFA. Amendments to the Credit Agreement 1.13 The Credit Agreement (see Fulfil-ient of Convenants in Annex 2) was amended in order to enable initially unplanned expenditure to be met by the Project. Authorization to meet the operating costs of DIFOP was conveyed by IDA on March 14, 1983. Another amendment on December 16, 1983 authorized expenditure to be met for fellowships for ENS students 1/ and teachers on in-service training and for the salaries of substitute teachers. The Closing Date of the Credit was first postponed to June 30, 1986, later to December 31, 1986, subsequently to June 30, 1987, but in effect the Credit was finally closed January 25, 1988. This was not made use of on account of the limited opportunities for recruitment into the civil service.  - 5 - CHAPTER [I PROJECT IMPLEMENTATION Overview 2.01 The Credit Agreement, signed on 15 September 1980, came into effect on 27 January 1981. Project Implementation lasted 6.8 years instead of the planned 3.8 years. The Closing Date was deferred on three occasions, mainly in order to make adequate use of funds for financing initially unscheduled items (additional in-service training and buildings). At the time of the completion mission, all buildings scheduled at Appraisal or built in addition had been delivered, furnished and equipped. The main problems were: (a) the under-utilization of most of the educational facilities and accompanying equipment; and (b) the diffic'alties encountered by users in maintaining the facilities. The number of technical staff in project management who benefited from training under the Project and.who are engaged in the implementation of the Second Project Is small - several of the original staff have been trans- ferred or promoted to other posts within the administration. Prolect Administration 2.02 The Office for the Implementation of Education Projects (Bureau de l'execution des projets d'education - BEPE) was established by minis- terial decree on April 7, 1978. It was superseded by the Directorate of Implementation of Education Projects (Direction de l'execution des pro- jets d'education - DEPE), established within the MENRS by ministerial decree (No. 171/MENRS/METFP) on February 20, 1985. Herein afterward, the project unit will be referred to as DEPE. (See Comments from the Borrower, Attachment I.) Proiect Management 2.03 Implementation of the Project began in January 1979 (Annex 3). The Project Director was assisted by an architect, a qualified technician in civil engineering and two accountants. The Project also benefited from the services of a specialist in school buildings over three years. 2.04 DEPE satisfactorily conducted its tasks relating to civil works included in the Project. DEPE assumed total responsibility for the extension of INFA in Tove (architectural designs, bidding documents and supervision of site operations, as well as the preparation of lists and bidding documents for furniture and equipment). As regards the ENIs. DEPE undertook follow-up activities and supervised the work of the firm of architects responsible for the designs. However, DEPE had no control over the setting up of DIFOP since the Fonds d'aide et de cooperation (FAC) was in charge of finan-ing that component of the Project and the liaison between FAC and DEPE on this was poor. In the view of the Government there was need for a more generally collaborative relationship between Togo and FAC on this item. This situation resulted, for example, in some significant gaps in the accounts of the Project. The accounting for the Project was correctly concerned with checking disbursements according to items of expenditure in order to ensure  - 6 - the judicious use of funds. More attention was needed to facilitating analysis of the costs of each component and of unit costs. Such analysis was not possible owing to the Ilncomplete state of information supplied by some financial sources, partiertarly by FAC. More complete coordination by DEPE of project Implementation. especially in the light of the variety of sources of funding, would have obviated the complaint of heads of Project Institutions that they were not kept informed of the maragement of their component. 2.05 There has been some staff turnover at DEPE. At the time of the completion mission, DEPE was being managed by its third Director and had engaged the services of its second architect. The civil engineering technician and the two accountants who benefited from the experience of implementing the First Education Project and from the study tours are now assisting with implementing the Second Education Project. The accounts department has been strengthened by addition of a third senior accountant. This has enabled its work to be conducted more satisfactorily: staff specialize according to the type of project and financing and the way its accounts are organized, in order to provide a broader range of analysis. The computerization of the accouncs through the purchase of equipment and the financing of study tours was an objective that has not been pursued. 2.06 The architectural plans for the two ENIs and DIFOP were entrusted to two private fimrs selected locally by DEPE In January 1979. Designs relating to the extension of CFPA were undertaken directly by the School Construction Unit, which acquired the services of a Unesco expert architect In June 1979, i.e. three months later than scheduled. Given the limited technical capacity of the firm of architects responsible for the designs relating to DIFOP. FAC decided to employ a new firm and to revise the architectural programme. The subsequent architectural studies began after considerable delay but the buildings were completed according to schedule because of good performance by the architect and the building contractors. 2.07 The two ENIs at Kara and Notse were built according to identical plans (Annex 4). The overall design involved a series of small buildings over a fairly extensive area with the inevitable consequences in termis of increased costs of transport and fencing. The design principle for most of the buildings (premises grouped systematically around a central courtyard) is questionable in so far as it increases certain forms of environmental nuisance (noise) and reduces the possibility of satisfactory natural ventilation. Furthermore, the architects failed to differentiate among the various faCades according to their exposure to sun or rain and used unnecessary space for the sole purpose of maintaining the symmetry of the buildings. The dormitories have a larger capacity (370 places instead of 360) than planned at Appraisal. 2.08 Modification of the architectural design for DIFOP did not lead to substantial changes in the new rremises to be built as compared with the Initial programme (Annex 5); activities were regrouped. specifications altered and existing areas allocated differently from the original programme. The overall aspect of the buildings is discreet and relatively compact. while the outside areas are limited and easy to maintain. With the exception of certain techniical teaching spaces where walls had to be demolished in order to install machinery and where problems will be posed once again when equipment has to be maintained or replaced, the speciallsed rooms are well adapted to the activities for which they were intended.  2.09 The extension of CFPA at Tove was undertaken on a site less favourable than that of the existing buildings (Annex 6). Paths between the buildings are very long and access to infirmary, dormitories and workshops is sometimes difficult. Th* overall design of the buildings is simple and the teaching premises for the most part are well exposed to light. The buildings are not always adequately protected against the rain and the sun, and this has caused rapid deterioration of the tutside wall surfaces. Roof ventilation is not consistently adequate throughout the premises, making some rooms uncomfortable and certain areas unsuitable - for example heat and evaporation in the storage rooms for chemical products are excessive. Construction 2.10 Invitations to tender for construction were Issued between January and June 1981 after a preliminary selection of contractors made in July 1980. Contracts were awarded in April 1981 (ENI at Kara and INFA at Tove) and September 1981 (ENI at NotsO). The process was in accordance with procedures acceptable to IDA for the various contracts. The DIFOP component was, however, administered directly by FAC. 2.11 Construction began with some delay. Five months passed between the award of the contracts and their signature. The construction time was in keeping with the Appraisal schedule, with the exception of the ENI at Kara, where additional drainage and consolidation work was required. For the two ENIs, a second bid invitation was issued in May 1985 for the construction of additional works which had not been planned during the Appraisal of the Project - demonstration schools, traditional kitchens and space for a generator. this additional construction work was duly completed In 1987 at Kara in March and at Notse in September. The Saudi Fund did not contribute to the financing of this additional work but will finance the building of related staff housing which has yet to be undertaken for each of the two demonstration schools. Maintenance of Premises 2.12 Maintenance of premises built under the Project varies from one institution to another. There are no funds earmarked for that purpose but the schools and institutes usually have sufficient staff for the daily maintenance and cleaning of the premises. The mission noted the satisfactory care taken to maintain the areas adjacent to various institutions. Maintenance problems are being encountered in lighting (inaccessibility of some installations), plumbing (poor quality of the equipment installed) and paint-work (lack of recurrent funds). The shortage of funding for maintenance was underlined by Government officials.  -8- Furniture and EauiDment 2.13 Lists of equi ment and furniture were drawn up by DEPE In collaboration with the future users. International competitive bidding was conducted in December 1981. Four contracts were signed to supply nine batches of equipment required. Additional international bidding was conducted in 1982 and 1983 for the sun"ly of vehicles, farm machinery and school textbooks. The last invitations t .ender were made in April and June 1986 for the supply of equipment and furniture for the demonstration schools added during Project implementation. 2.14 Mention should be made of various problems regarding equipment: (a) some equipment Is unusable - for example, certain types of farm machinery are unsuitable for local conditions; (b) some equipment is unused because of lack of qualified personnel for their utilization - for example the language laboratories and audio- visual equipment - or because of a change in the functioning of the ENIs where no pre-service training was undertaken with the consequence that some physics and che:mistry equipment is unused; and (c) some equipment is under-utilized, as in the case of modern kitchens installed in the ENIs, for reasons relating to the cost and availability of the appropriate energy sources (electricity or gas). Utilization of Premises 2.15 Problems concerning the utilization of educational premises are apparent in the ENIs. The organization of specialized in-service training sessions requiring the services of foreign specialists until such time as permanent staff of the ENIs is recruited, has led organizers to confine most of the classes and practicals to the lecture hall where all the teacher trainers and trainees can be grouped together. This practice has led to considerable under-utilization of teaching spaces, whether specialized or not. 2.16 Demonstration classes are held in the lecture hall in spite of the fact that (a) the ENIs have demonstration rooms and (b) the Project provided a complete primary school on each of the two sites. The mission could not forecast the opening date for the demonstration schools since: (a) no teachers have been appointed, and (b) there is no related housing. 2.17 The traditional kitchens, which were built at the users' request, had not yet been put to use, since the staff felt that they should wait until the premises had been officially completed. Furthermore, the mission observed that the users often had dif.iculty in making judicious use of what they had at their disposal. requesting additional premises (for example, an air- conditioned store room for books) when there were already several unoccupied rooms in the schools with those facilities, which had originally been allocated to other activities.  -9- Technical Assistance (Annex 7) 2.18 The Project originally provided for appeoximately 14 man-years and four man-months of specialist services in order to: (a) coordinate DIFOP activities (three man-years); (b) assist in the creation of INFA pedagogical sections and improve the management of that institute (four man-years): and (c) strengthen DEPE and prepare projects likely to berefit from external financing (seven man-years). The Project also provided for nine fellowships (7.5 man-years) for primary education (DIFOP), 20 fellowships (12 man-years) for rural education, two fellowships (15 man-months) for the preparation of the Project and four fellowships (two man-months) for DEPE (Project Unit). 2.19 Technical assistance was originally to have been completely financed by IDA and FAC. Subsequently, the UNDP-Unesco projects for assistance to INPA and DIFOP, which began in 1983 and 1984 respectively, comprised technical assistance funds, including training fellowships for INFA instructors, which duplicated those for which FAC was responsible. FAC. which was already heavily committed to DIFOP, left responsibility for financing the INFA fellowships to the UNDP-Unesco project. 2.20 In respect of the seven man-years and four man-months of experts services connected with DIFOP and INFA, technical assistance was fully and satisfactorily implemented. In addition, the UNDP-Unesco projects were extended In July 1987 fcr three years (DIFOP) and two years (INFA) respectively. As for FAC, it is more than likely that the experts on the spot (five posts per annum at DIFOP and as many at INFA), will be kept on so as long as Government requests their retention. This additional technical assistance would help to reinforce the results obtained at the end of the Project. 2.21 Approximately 3.5 man-years of expert assistance were used within DEPE. The services of an architect were used upon by DEPE for three years in order to conduct architectural studies and to prepare the bidding document concerning the extension of DIFOP and the follow-up to the activities of the firm of consultants responsible for designs for the ENIs. App,roximately half a man-year was also used in the form of a short-term consultant mission for a study of maintenance of school buildings and a study of the costs and financing of education. These studies were connected with the implementation of the Second Education Project (Credit 1568-TO). DEPE start assumed responsibility for the preparation of lists and background for competitive bidding concerning equipment and therefore did not make use of the expert services under the P.oject. 2.22 The provision of fellowships and study trips - although delayed - was successfully conducted both abroad and locally beyond the objectives of the Project, particularly within the framework of the two UNDP/Unesco projects. New fellowships are planned in the two extended projects.  - 10 - CHAPTER III COSTS AND DISBURSEMENTS Costs 3.01 A comparative table of costs estimated at the Appraisal and actual costs per component expressed in CFAF and in US dollars by category of expenditure is presented In Annex 8. The total net-of-tax cost of the Project, Including provisions for contingencies, was estimated at Appraisal at 3,631.780.000 CFAF. or the equivalent of USS16,818,0001'. The total actual cost of the Project, as impiemented, Is calculated at 6,025.539,000 CFAF, or the equivalent of USS16.276.0002/, which represents an increase of 71 per cent in relation to Appraisal estimates established in CFAF and a decrease of three per cent In relation to the US dollar base3/. The difference is attributable to the fluctuation of exchange rates during Project Implementation. (Cf. exchange rates, page viii). 3.02 The table which follows (Table 3.1) summarizes estimated and actual costs (in CFAF and in US dollars) by category of expenditure. 1/ 1US3 = 210 CFAF at the time of Appraisal. 2/ USS1 = CFAF 370 on average over the duration e1f the Project. 3/ It was not possible to determine the real cost of operations financed by FAC. The actual project cost was calculated on the basis of the sum of the three FAC 'conventions' and an estimate of the cost of technical assistance provided by FAC. It was not possible to determine the cost of fellowships not financed by the Credit Agreement.  - 11 - Table 3.1 PROJECT COSTS BY CATEGORY OF EXPENDITURE (Net so taxes, including contingencies) ADoraisal Actual Diff. In % Estimate Cost CFAF USS % CFAF USS % CFAF USS aillihl thoasaud uillios tbossaid Construction 2.019 9,6i6 57.2 3.208 8,664 53.2 +59 -lO Furniture 179 851 5.1 217 588 3.6 +22 -31 Equipment 530 2,522 15.0 563 1,493 9.2 + 4 -41 Professional Fees 149 710 4.0 155 420 2.6 + 4 -41 Expert services 388 1,850 11.0 360 945 5.8 -10 -49 Fellowships 69 328 2.0 7 19 0.1 -90 -94 Training 198 941 5.6 1.535 4,147 25.5 +676 +341 TOTAL (raxes Excl.) 3,532 16.818 100 6,025 16,276 100 +71 -3 TOTAL (Taxes Incl.) 4,200 20,000 3.03 With the exception of training-related expenditure, the scope of which cannot be compared with the Appraisal estimates which dealt only with the financing of pre-service training for substitute teachers, each category of expenditure valued in US dollars fell below the estimates. Expressed In CFAF, the most significant increases In costs relate to training (+676 per cent), construction (+59 per cent) and furniture (--22 per cent). The increase in the overall construction cost is the result of: (a) an increase in constructed surface areas of the order of 16 per cent for all components and attributable mainly to the ENIs (+26 per cent); (b) delays in the starting-up of construction and the introduction of additional constructloi. toward the end or Project implementation: and (e) unit costs per square metre in excess of Appraisal estimates expressed In CFAP (cf. para. 3.04). The difference In costs of furniture varying from +18 per cent to +28 per cent can be attributed mainly to a difference in unit costs; as far as the ENIs are concerned, the excess of planned construction was not accompanied by a similar increase in the volume of furniture). Unit Costs - 3.04 Unit costs per square metre of construction are as followsl/: 1/ At the average rate of 370 CFAF = I US$.  - 12 - ENI at Kara 103,000 CFAF or US$278 ENI at Notse 100.000 CFAF or US$270 INFA at Tove 92,000 CFAF or USS248 DIFOP at Lome 129,000 CFAF or US$348 Differences observed among unit construction costs of the various facilities are related to: (a) the remoteness of the locations of the Projects; and (b) a difference in building standards for DIFOP. In relation to Appraisal estimates established in US dollars, varying from $210 to 310 per m2 in 1980, the price increase was minimal because of fluctuations in exchange rates. Considered In terms of changes In CFAF, the increase in unit construction costs may be estimated at approximately 75 per cent over the period between March 1980 and December 1983 (completion of construction work except for the two demonstration schools), that is to say, approximately 17 per cent per annum. Cost per Student Place 3.05 The unit cost per student place (construction, furniture, equipment and architects' fees) stands at 3,343,000 CFAF on average for the ENIs, on the basis of their theoretical Intake capacity of 360 students per institution. In relation to the surface areas, the student place in the ENIs corresponds to 27 m2 of overall construction (school. boarding facilities and staff housing) With regard to the extension of existing or specific infrastructures; no attempt was made to calculate unit costs per student place for DIFOP and INFA. TraininR and ODerating Costs 3.06 Financial support by the Project for in-service training activities was agreed to by IDA in December 1983 and took the form of monthly or daily allowances according to the category of the beneficiaries and the duration of in-service training. The ENIs and DIFOP were allocated a budget corresponding to the activities which they had to conduct. Expenditure on upgrading activities which took place within tite Regional Inspectorates was handled by DIFOP. The allowances were calculated according to the following scale: FCPA/month FCFA/day Training in the ENIs or at DIFOP School Principals 45,000 Teachers 45,000 Pedagogical advisers 45,000 Substitute teachers 40.000 Further training in the Inspectorates Inspectors - 3, 000 Pedagogical advisers - 2, 000 Teachers - 1, 000  - 13 - These allowances were too generous and have been scaled down in the case of the Second Education Project. The breakdown by category of the whole of the operating costs of training under the Project (1,535,310,500 CFAF) is as follows: Training costs 402 Salaries for substitute teachers and part-time teachers 47? Other operating costs 132 100o Financing 3.07 Subsequent to the implementation of an advance of funds for the preparation of the Project amounting to US$414,000 on January 30, 1979, the Credit Agreement, signed on September 15, 1980, came into effect on January 27, 1981, that is to say, six weeks later than scheduled, pending the announcement of the Judicial Ruling of the Supreme Court of Togo. Co-financing arrangements provided by FAC came into effect on August 19, 1980 (first of the three FAC "Conventions de financement") and those provided by the Saudi Government came into effect in June 1979. 3.08 A summary table of the planned and implemented financing procedures of the Project is provided in Annex 1. The IDA Credit covered 66 per cent of the total cost of the Project approximately equal to the 65.4 per cent scheduled at Appraisal. Government financing covered 14.9 per cent of the Project cost, instead of the 4.3 per cent scheduled at Appraisal. On the other hand, FAC and Saudi financing fell from 30.3 per cent (Appraisal) to 19.1 per cent (actual). Disbursements 3.09 At the request af the Government, IDA granted several extensions of the Closing Date. When extension to June 30, 1987 was approved, submission of requests for reimbursement were authorized until December 31, 1987 for expenditure committed before June 30, 1987. Ultimately, the Credit was closed on January 25, 1988. A sum of US$10,813,748.49 was drawn from the Credit and the balance of US$186,251.51 representing 1.7 per cent of the sum of the Credit of US$11 million, was cancelled on January 25, 1988. A comparison between estimated and actual disbursements, by category of expenditure, is given in the table of Key Project Data, page (v). A comparison between the estimated schedule of disbursements and the actual implementation schedule is given in Annex 3. 3.10 In order to ensure as full a utilization of the Credit as possible, the reimbursement percentages by category of expenditure were revised on March 14, 1983 and the Credit proceeds were reallocated on February 24, 1984.  - 14 - CHAPTER IV PROJECT INSTITUTIONAL PERFORMANCE Overview Obiectives 4.01 The Project, which was designed to help bring about educational reform, comprised the following objectives: (a) for primary education, (i) the training of additional teachers in response to an increase in student numbers; (ii) the improvement of the standard of in-service training of teachers; (iii) the training of educational staff; (iv) the preparation of new curricula; and (v) the preparation of teaching aids, and (b) for agricultural education and training, (i) the training of middle-level instructors in rural development and the in-service training of personnel; (ii) the training of teachers for agricultural secondary schools; and (iii) the training of agric_ltural advisers for primary education. The Project was also supposed to assist in the preparation of new projects. Implementation 4.02 In July 1983 during Project implementation, the country, which was beginning to face a difficult economic situation, decided to apply the austerity measures recommended by the International Monetary Fund, thereby bringing about a very m&rked-reduction, even cessation, of recruitment into the civil service. It was for this reason that pre-service training in the ENIs, on the basis of which the construction programme had been justified, was suspended after only one year of training for substitute teachers. The new institutions are now used exclusively for in-service training. The position at INFA in Tove is similar. Of the five initial training programmes scheduled for that component of the scheme, only two have been put into effect. The rest of the Institute's activities is focused on in-service training. The abolition of part of the training initially planned has inevitably led to the under-utilization of buildings. 4.03 DIFOP, which has also benefited from substantial support from the FAC, as well as from the UNDP-Unesco project, has been able to attain the planned objectives and even to exceed them. Primary Teachers Colleges (Ecoles normales d'instituteurs - ENIs) Pre-Service Primary Teachers Training 4.04 The activities of the ENIs, which were opened in early 1984, were originally to have comprised: (a) pre-service training in a three year course with annual output of 160 graduate teachers and (b) in-service training programs of 3 months duration with an annual output of 720 retrained teachers. Pre- service training was aimed at students holding the "brevet" (diploma) (successfully completed Grade 10) and was to last three years, including two years of theory and practice and one year of practice teaching. As in the case of other forms of training, it was DIFOP which prepared the curricula with the  - 15 - help of INSEE. The programme was, however, disrupted as the result of the budgetary restrictions which stopped the recruitment of new teachers. In parallel with the austerity measures, there was also a stagnation in student numbers in the education system (cf. Annex 9). A lack of motivation for education, and rising poverty and the stagnation of teacher nrTmbers, particularly in rural areas, may have been the cause of this situation. / 4.05 Pre-service training was restricted (1983-1984) to a single year of 245 teachers (122 at Notsd and 123 at Kara) through recruitment of baccalaurdat holders ("bacheliers") for limited training of 12 months. The raising of the standard of recruitment was designed to improve the quality of teaching and increase the number of outlets for bacheliers. Trained primary teachers, as well as those who were recruited through the competitive examination, were able to replace, as planned, those teachers undergoing in-service training in the ENIs. In-Service Training of Monitors and Assistant-Monitors (Annex 10) 4.06 Teacher upgrading, which represents the second purpose of the ENIs, began in February 1984. The operation was aimed particularly at monitors and assistant-monitors with approximately 160 trainees per session and per ENI, and three sessions per year. The teachers trained in service through this operation added to other in-service staff trained in teacher colleges, DIFOP and school districts exceed (see Annexes 10 and 14) the Project objective of 720 teachers per year. The upgrading of all practising monitors was achieved by December 1986. Most of the trainees had not received any prior training and the programme comprised the extension of knowledge and the teaching of methodology and class practice. On arrival, the trainees were given a knowledge test in order to detect any short-comings. They were then put into sl'k or seven groups of 15 to 30 trainees, both male and female.21 Training lasted three months and comprised three phases: subject teaching (three to four weeks), model lessons (a week and a half) and alternate trial lessons and in-depth classes (eight weeks). The trainees we:e assessed both during and at the end of the course and a final test, of the same standard as the knowledge test used at entry, was used in order to measure the progress achieved. 4.07 End-of-course assessment is currently thought to be satisfactory with regard .o the trainees' capacity to impart knowledge. However, performance in class should be checked through frequent inspections and objective assessment conducted by DIFOP, so that any feedback could be used in subsequent in-service training operations. In that connection, the seminar held in February 1987 on the "harmonization of strategies for in-service training for teachers", which brought together instructors from DIFOP, those in primary education and the heads of the ENIs, put forward a follow-up sLrategy for inspectors and principals according to a scale of assessment drawn 1/ The Borrower notes that the participation of two teachers from two normal schools should b2 mentioned. (See Comments from the Borrower, Attachment I) 2/ The teaching staff of the education system included 21 percent of women in 1986-1987.  - 16 - up by the ENIs. The Ministry decided, furthermore, to decentralise the 90 in-service advisers in the inspectorates_ /, in order to ensure more efficient inspection procedures. In order to facilit ite their travel, 36 scooters were supplied by the Project