Mauritania - Second Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 8861 PROJECT COMPLETION REPORT ISLAMIC REPUBLIC OF MAURITANIA SECOND EDUCATION PROJECT (CREDIT 1214-MAU) JUNE 29, 1990 Population & Human Resources Operations Division Sahelian Department 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 authorization.  LIST OF ABBREVIATIONS CURRENCY EQUIVALENTS Appraisal Estimate - US$1 = Ouguiya 47.0 Actual 1982 - 51.8 1983 - 54.8 1984 - 63.8 1985 - 77.1 1986 - 74.4 1987 - 73.9 1988 - 75.0 GLOSSARY OF ABBREVIATIONS ATCT Agence tunisienne de cooperation technique/Tunisian Technical Cooperation Agency BAfD Banque africaine de developpementlAfrican Development Bank BOM Bureau d'organisation et m6thodes/Organization and Management Unit BPE Bureau des projets education/Education Project Unit CEG College d'enseignement general/Lower Secondary School CFPCEG Centre de formation de professeurs de CEG/Lower Secondary Teacher Training College CFPM Centre de formation professionnelle maritime/Maritime Training Centre CFPP Centre de formation et de perfectionnement professionnels/ Vocational Training and Upgrading Centre DPC Direction de la planification et de la cooperation (MEN)/ Directorate of Planning and Co-operation DPE Direction des projets education (nouvelle appellation du BPE)/Directorate of Education Projects EEC Communaut4 economique europeenne/European Economic Community ENS Ecole normale superieure/Secondary Teacher Training College FAD Fonds africain de developpement (BAfD)/African Development Fund FED Fonds europeen de developpement (CEE)/European Development Fund (EEC) IDA International Development Association (World Bank) ILO International Labour Organization MEN Ministbre de l'4ducation nationale/Ministry of National Education SDR Droits de tirage speciaux/Special Drawing Rights STPN Societe des transports publics de Nouakchott/Nouakchott Public Transport Company UM Ouguiya mauritanien/Mauritanien Ouguiya (currency unit) UNDP United Nations Development Programme GOVERNMENT OF MAURITANIA FISCAL YEAR January 1 - December 31  NM OVUCL us ONLY THE WORLD IANK Washington. DC 20433 USA O0ke of Mtaf-~ OUt.m @Ovctv.GmtaI Opruw Ev&e:m June 29, 1990 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Completion Report - Islamic Republic of Mauritania Second Education Proiect (Credit 1214-MAU) Attached, for information, is a copy of a report entitled 'Project Completion Report - Islamic Republic of Mauritania Second Education Project (Credit 1214-MAU)', prepared by the Africa Regional Office. No audit of this project has been made by the Operations Evaluation Department at this time. Attachment This doc:umet ha a nuktd dibuti and may Wb uod by mdpits Zly" i th foam I of th6er olfcb dutica Its ctoft rts may not otItti be diwcleso without WorMBn autbohod.  FOR OMCAL USE ONLY PROJECT COMPLETION REPORT ISLAMIC REPUBLIC OF MAURITANIA SECOND EDUCATION PROJECT (CREDIT 1214-MAU) TABLE OF CONTENTS Preface ......................... ..................*...*... (.) Basic Data ...................... ............ ................. (i Evaluation Summary .... ..... ...... .....* ..... ...... (v) I . Project Summary ......... .... . . ... .. ...... .. I 1 II. Project Administration and Management ............... 5 III. Project Implementation ............ ...... ..... 7 IV. Costs and Financing . ........*.... ......... ........ 14 V. Project Results ........ ..... .... .................. . 19 ANNEXES ... ......... . . *....... .. .... .. .... 00........... 25 Annex 1. Compliance with Credit Agreement Covenants..... 26 Annex 2. Implementation Schedule ............ ....... 29 Annex 3. Comparative Tables of Planned and Build Surface Areas ...... ........... . .. .. 30 Annex 4. Schedule of Credit Disbursement ................ 32 Annex 5. Summary Table of Specialist Services ........... 33 Annex 6. Principal Studies Conducted .................. 34 Annex 7. Summary Table of Training Actions......o........ 35 Annex 8. Total Cost of Project ................... ......... 36 Annex 9. Comparative Table of Schedule of Disbursements .............. . ........... . 39 Annex 10. Objectives and Results of the Project ........... 40 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not ctherwise be disclosed without World Bank authorization.  ISLAMIC REPUBLIC OF MAURITANIA SECOND EDUCATION PROJECT (CREDIT 1214-MAU) PROJECT COMPLETION REPORT PREFACE 1. This is the Project Completion Report (PCR) for the Second Education Project in Mauritania for which IDA Credit 1214-MAU for 4.9 million SDR (US$5.7 million equivalent) was approved on May 20, 1982. The credit was closed on December 31, 1988, 27 months behind schedule. The Credit was not fully disbursed and the undisbursed balance of SDR 74,422 was cancelled July 13, 1989. 2. The PCR was prepared by UNESCO and the Africa Regional office, and is based, inter alia, on the Staff Appraisal Report, the Credit Agreement, Supervision Reports, field observations and discussions held with IDA and country officials. 3. The PCR was read by the Operations Evaluation Department (OED). The draft PCR was sent to the Borrower and cofinancier for comments but none were received.  - ii - ISLAMIC REPUBLIC OF MAURITANIA SECOND EDUCATION PROJECT (CREDIT 1214-MAU) PROJECT COMPLETION REPORT BASIC DATA SHEET Appraisal Provisional estimates Results Total cost of project (as of Jan. 1. 1989) - in millions UM 720 647 Z less 10 - in millions SDR 13.2 7.9 Z less 26 Amount of Credit (million SDR) Disbursed 4.9 4.83 Cancelled .07 Completion date of physical components 12/83 12/85 Financial performance good Institutional performance good SUPPLEMENTARY DATA Appraisal Revised Actual Estimates Estimates Date First reference to dossier 5/78 Government request 11/79 9/80 Negotiations i;/61 12/81 Board approval 1/82 3/2/82 Credit Signing 5/20/82 Effectiveness 1;'21/83 Closing date 9/30/86 9/30/87 6/30/88 12/31/q8 Borrower: Government of the Islamic Republic of Mauritania Executing agency: Ministry of Economy and Finance. Subsequent Project: Credit Number 1943-MAU Amount (USS million) 18.2 Date of Agreement Augus; 29, 1988  - iii. - ESTIMATED AND ACTUAL ACCUMULATED DISBURSEMENTS (USS millions) Quarter/Year * IV/83 IV/84 IV/85 IV/86 Il87 I188 Il89 IV189 Appraisal Estimates 1.55 3.05 4.35 5.62 5.70 Actual 0.77 1.42 2.16 2.86 3.78 4.30 5.08 5.61 Actual as Z of Estimate 49.7 46.6 49.7 50.9 66.3 75.4 89.1 98.5 * IDA fiscal year: July 1 - June 30  - iv - DATA RELATED TO MISSIONS Report Mission* Sent Month/ No. No. Special No of Rn/epok Dte by year weeks pern. litot fiold HQ tot. Identificat. IDA/ Unesco Mar. 79 1 2 ED,EC 2 2 Post-identif. IDA July 79 1 1 ED 1 1 Pro-prp. IDA Sept T9 1 2 ED,EC 2 2 Pro-prop. Unoeso Nov. 79 2 2 ED,A 4 4 Nov. 79 Preparation Unesco Feb. 80 2 1 ED 2 2 Feb. 80 Preparation Unesco May 80 6 6 ED,EC,U, FA,FP,A 1iS 1 June 80 Preparation Unesco June 80 1 5 ED,EC,M1, FP,A 5 3a 38 Appraisal IDA Oct. 80 3 5 ED,FP,FA, EC,A 1 1S Feb. 82 Poet-approisal IDA Jan. 81 1 3 EC,ED,A 8 3 Jan. 81 Post-appraisal IDA Sept 81 1 2 ED,FP 2 2 Oct. 81 Sub-total 61 33 84 Supervision 1 IDA May e2 1 2 EC,A 2 10 12 June 82 2 IDA Sept 82 1 1 ED 1 1 Oct .82 3 IDA May 83 1 1 ED 1 10 11 June 83 4 IDA July 88 1 2 ED,A 2 2 July 83 5 IDA Nov. 83 1 2 ED,FP 2 2 Nov. 83 6 IDA Feb. 4 1 1 ED 1 7 8 Feb. 84 7 IDA Nov. 84 1 2 ED,A 2 2 Dec. 84 3 IDA Mar. 86 1 1 ED 1 1 9 IDA May 85 1 1 ED 1 5 6 10 yDA Oct. 8 1 1 FP 1 6 8 Nov. 85 11 IDA Aug. 86 1 2 ED,A 2 2 Oct. 88 12 IDA 'Jov. 88 1 1 ED 1 1 Dec. 88 13 IDA Apr. 87 1 2 ED 2 8 10 May 87 14 IDA July 87 2 1 A 2 2 Sept 87 15 IDA Feb. 8 1 1 ED 1 1 2 July 88 i0 IDA Mar. 89 1 1 A 1 a 4 Mar. 89 Sub-total 1 49 72 Completion Unesco Apr 89 2 2 ED,A 4 8 10 May 59 Total 78 88 186 Key: ED a Educator; A a Architect; EC a Economist; FP a Vocational Training Spcialist; FA a Specialist in administrative training; M a Specialist In maritime training; STAFF INPUT (Stat f e lks) FY 79 so 81 82 88 84 86 81S 8 88 Total Fpeappralal 16 1 s6 iZ. - - - - _ _ 96.2 Apprisal - - 37.9 6.1 - - - - - - 44.0 Negotiation - - - 6.5 - - - - - - 8.5 Supervision - - - 4.7 18.3 11.7 9.0 8.4 18.8 6.5 63.5 Other - - .1 - - - - - - - .1 TOTAL 18.1 65.5 62.6 17.8 18.8 11.7 9.0 6.4 138. 4.5 219.3 ______ _ _ ___ _ __ _ _____ _ _ _ _______ _ ___ _ __  -v - ISAMIC REPUBLIC OF MAURITATIA SECOND EDUCATION PROJECT (CREDIT 1214-MAU) PROJECT COMPLETION REPORT EVALUATION SUMMARY Obiectives The objectives of the Second Education Project were to (a) strengthen the training of skilled workers in the industrial and commercial sectors by expanding the facilities and improving the programs of the existing vocational training center (CFPP) in Nouakchott; (b) establish training programs for the commercial fisheries sector by expanding facilities of the existing maritime training center (CFPM) in Nouadhibou; (c) improve the quality and increase the ntmber of secondary teachers by establishing a lower-secondary teacher training college (CFPCEG); and (d) improve the Ministry of Education's capacity for educational planning and administration by strengthening its Department of Planning and Cooperation (DPC) and setting up an organization and management unit (BOM). Implementation Experience Implementation experience was generally positive with respect to the physical aspects of construction, in large measure due to the effective performance of the project implementation unit (PCR 2.03-2.05). Engineering problems encountered during construction of the CFPCEG were satisfactorily resolved bv the PIU (PCR 3.03) and good-quality buildings were constructed. Importantly, an effective maintenance system for buildings and equipment was provided as part of the project. Construction of extensions to the CFPP was carried out less efficiently due to inadequate construction supervision, while the maintenance function was neglected in this case. There were also some design problems: for example, several non-teaching functions of the CFPCEG (student catering and administrative offices) were inadequately provided for and needed to be accommodated in converted classrooms. In addition, the project did not anticipate the need to provide residential accomodation for girls, which severely limited female enrollments in teacher training (PCR 3.03). Similarly, changes in demand for skilled worker training at the CFPP could not easily be accommodated as workshops and other facilities were difficult to convert to a different use than originally designed (PCR 3.04). Procurement of equipment and furniture was efficiently carried out by the project unit. Appropriate equipment of good quality was procured in a timely manner and delivery was coordinated with the completion of the buildings constructed under the project (PCR 3.06-3.12).  - vi- Consultants and expert services provided under the project performed satisfactorily, particularly with respect to the preparation and conduct of national training seminars (PCR 3.13-3.14), the design of teacher training programs (PCR 3.15). the strengthening of the educational planning function (PCR 3.16), and, with the exception of the project unit's site engineer, technical support to the project implementation unit (PCR 3.17-3.18). With respect to cofinancing (AfDB for teacher training, FED for fisheries sector training), project implementation was seriously affected by the withdrawal of one of the partners (FED) which forced the cancellation of the fisheries training component (subsequently included in the Third Education Project). Inadequate consultation between prospective funding agencies during project preparation, and IDA's agreement to waive its cross-effectiveness condition with the proposed FED financing contributed to the collapse of the project financing plan (PCR 3.03). Results The quantitative objective of prov. ing skills training in industrial and commercial occupations has been met: CFPP throughput in 1988 was 600 trainees, substantially exceeding the appraisal target of 350 trainees per annum by project completion. In addition, all instructors were trained abroad and by 1987 the CFPP was entirely staffed by nationals. Training programs were (at least initially) designed in consultation with employers, as envisaged at appraisal and presumably reflect employers' needs. However, the quality of training is low and cFPP graduates are in declining demand. Factors which contribute to thtis deterioration in CFPP performance include heavy overcrowding of the facilities, poor management of-the institution, lack of maintenance of buildings and equipment, inadequate consultation between the center and employers, and inadequate budgetary provision (PCR 5.01-5.04). To help overcome these problems, a number of corrective meaoures are being taken in the context of the Education Sector Restructuring Project (Credit 1943- HAU). The second project objective - establishing training programs for the commercial fisheries sector - has not been achieved as a result of the withdrawal of FED financing (PCR 5.06). Since the original objectives remain valid, this component was transferred to the Education Sector Restructuring Project (Credit 1943-MAU). The creation of a new institution (CFPCEG) to train lower-secondary teachers in sufficient numbers to replace expatriates within ten years - the third project objective - was not justified. Sharply increasing demand from secondary school leavers for admission to the existing higher teacher training institute (ENS), which trained lower- and upper-secondary teachers even before the opening of the new CFPCEG in 1983, resulted in a tripling of ENS enrollment (and graduates) from 1979 to 1987, largely satisfying the demand for new secondary teachers. The Government. in 1986, decided to eliminate the excess teacher training capacity created by the opening of the project- financed CFPCEG and combined the facilities and programs of the two institutions, a decision which-was supported by the Association. It is clear that the preparation and appraisal missions, in proposing the creation of an  - vii additional institution to train lower-secondary teachers, incorrectly assessed the potential training capacity of the ENS. From a qualitative aspect, however, the project was successful in that it introduced in the CFPCEG some major innovations in curriculum content and pedagogical approach, which have been adopted by the ENS. The fourth objective - strengthening educational planning and management - has largely been achieved: the DPC was strengthened, the BOM was established, a significant number of local staff (about 250 education administrators. for example) were trained. and administrative procedures and systems were put into place. Sustainability The long-term sustainability of thq vocational training center (CFPP) is jeopardized by the low quality of it, output resulting from heavy overcrowding, inappropriate training content, poor management and inadequate operating funds. In addition, there is inadequate information on national training requirements and employment patterns so that the relevance of course offerings is in question. In order to improve the CFPP's long-term viability, the center's management and financing need to be strengthened, effective cooperation with employers needs to be set up, and the student population needs to be reduced (limited to skills upgrading instead of pre-employment training, as envisaged at appraisal). Some of these measures are being introduced in the context of the Education Sector Restructuring Project (Credit 1943-PMAU) currently under implementation. The secondary teacher training program, in its modified form following the absorption of the project-financed CFPCEG by the ENS, is viable in the long term. Even with expanding secondary enrollments, the ENS has sufficient capacity to train teachers in the required numbers (currently estimated at about 100 per year) and, importantly, to focus on upgrading and retraining of teachers currently in service, as well as the training of school administrators and other education specialists. The Ministry of Education's capacity for educational planning (DPC) was strengthened marginally under the project while its organizational and management unit (BOM) was successfully established. Although both units have produced some excellent work, they should be considered as initial efforts which require further support if they are to establish themselves as viable elements of the educational system. Since project support ended in 1988, both are in danger of becoming ineffective because of inadequate staffing and professional backstopping, and insufficient funding. Provided that additional support is forthcoming, the long-term prognosis, however, is considered good. Findinas and Lessons Learned Three of the planned four project Ectivities were undertaken (vocational training, stAondary teacher training and educational planning and management); the fourth activity (training-for the fisheries sector) was dropped for lack of financing (FED). Achievements are mixed: the objective of strengthening vocational training/upgrading for industry and commerce was not achieved; that  - viii - of training secondary teachers of good quality, in sufficient numbers, was fully achteved; and a good start was made with establishing educational planning and administration capacities. The failure of the vocational training component is essentially due to poor management by the Government and to ineffective supervision by the Association. Success of the teacher training and educational planning and management components is essentially due to good performance of consultants and technical experts, and to well-planned staff training programs. The PCR suggests, throughout the text, that several lessons can be drawn from this experience: (a) Bank supervision, particularly with respect to education/training matters, should be strengthened so that corrective measures can be taken quickly and, if necessary, the project's scope or content can be adjusted if project objectives clearly cannot be met. (b) Local supervision capacity, particularly of educational aspects, should also be strengthened. Strict requirements for project monitoring and evaluation, including all educational aspects, should be established and workable mechanisms put in place to satisfy the M&E requirement. To provide professional backstopping and oversight, a full-time education/training specialist should be attached to the project unit. (c) Careful preparation of the technical assistance program pays off: detailed terms of reference, prepared prior to credit effectiveness, ensures rapid implementation; contracting TA-to a single agency provides a homogeneous team and facilitates procedures and coordination; continuity in TA provision, particularly between the completion of one and the start-up of the next project. is essential; and flexibility in the use of TA funds to meet untforeseen needs improves efficiency. (d) Training programs similarly need careful preparation and up-front agreement on the procedures for selection and nomination of trainees. Training program design also needs to be comprehensive and include provision for local staff training in management, administration, maintenance and other essential support functions. I (e) Discussions on cofinancing should be initiated during the early stages of project preparation so that cofinanciers assume ownership of the component(s) to be cofinanced. If the availability of cof