Haiti - Fourth Education and Training Project

Daemuea of The World Bank FOIL OMCI~AL USE ONLY Repit No. 12559 PROJECT COMPLION REPORT NAm FOURTH EDUC&TION AND TRAINN PROJECT (CREDIT 1592-}hA) NOVeBER 30, 1993 HICROGRAPHICS Report No: 12559 Type: PCR hBn Resources Division Country Department III Latin America and the Caribbean Regional Office Ths document bas a restricted distibuio Nd may be msed by recpien only in te performase of er officil dute Its COte_t may on otherwise be disclosed wout Wdd BRak autholiztI  CtRRENCY BQUIVALET Curreny unit - Goa () US$1.00- GS (ApprailRate) MSCAL YEAR Octobe 1 - Sptember 30 ABBREVIATIONS AND ACRONYMS FONHEP HEtian Foundation for Privat Edcatio INFP Nationd nstitut for Vocational Trai IPN Nationa Pagical InstitIte MEN Miistry of Education PCR Projec Completon Reot lU Project ean Unit PPF Project Prparation Fality TvET Techical and Vocational Education and Traning UNESCO United Nations Eduatonal, Scietfic and Cultura Orgization USAID Unid States Agency for Iaonal DeoWpme  FOReJUSONL1 ThEWORLD AWK -~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ - -u Ncr~vmbe~r 30,1993, SUBJEct: Project Completion Report on .aiti r-bw** FA ^ 3s and - Attached is the- Project Completion Report on flati - Fourth Education and Training Project. (Cr. 1592-HA) prepared by the Latin Americ and the Caribbean Regonal Offce. No comments hav bee recived from the Borrower. The PCR give an adequate accont of the project experience. Its preparation was made diffcult by the impossblity of sendin a.mission to the countryan by the acute lack of data. When IDA suspended dbusmnsto Haiti in the wake of the September 1991 coup, 20 percent of the SDR 10.4 nlmilo Credit remained undisbursed and was cacele ith the Closure on March, 11, 1993. While hardiy any data are available on projectipeetto other thn thos relati to covenants and dibreet,ther cam be litlPdut that the pojwets overal achievments are unsatisfactor, its nstitution buildig resuts neglgible and thie sustanabilty of the fimite development impeac unftkey. Mhi was all but inevitable given the extreme volatility of county conditions (with nine Goverments following one anothe since the st of te project in 1985). N audit is planned. Alttachmnt This dooumen hu a re*lWd dsldbuUton end a be usd by reo(pIent ony hfth peifonane of thei OMflo *A%&ies t oonlsnns ma no&ohewise to disols w*m wou Wo*d &ank athesip.  FOX omcw. wuSaN aux TALBL OF CONTDfIhpN PRWACN ................... ,-............ ..... 1VAJATION SM9A1LRY .................*. * ** P^oct Re W ...~.................. 'Oi - ' Pwject S ......... ....... S^................ P Whiipsand Ixsni Imd . ................ , L 1!SWr RIEVIEW FROM .D.A.s C TIVE ....... 4..... * * 1 - uingadl.essnlau . . . ... ... .... .... ..*.. . *.. - i,- PoJcrl Environment ... ........... 1 oa SW4 Issu4 S ......... .. . . . 1. Sector Dmeoment Objectl aud Ply Contet .............. 2 Likage Betwe Proect, Sector and Poi jei .....a.L.Macro..ol.y. 2 Pwoet Objecffro aid C . . ........................... . 3; WeakFDeginandc don 4. P aoctin inPee ip.................. 6 Lack of lotea Funds ............ 6 7 IPj .ea .nss .... ........ ................ 10 jessocu ned......d.D . ... ................ .... 10 10 CSoJ g SeJrvies...cee .s 1 0....... .. ...........*... 10 PVCe Dwp and Dft .... .... *... 10 t IIL STATE0ICAL 9 RB"FORhAsN ............. 11 1. RdbXd DDA Craft .......... 0...... **. 11 2.PnsTwb I" re ................12 3. C CreditXo 13 4. P n x * ossad lnCb " s.................. 14 S. AUocoon of PxooWd ................1S 6. Stas ofLegal Covenants ....... .. ..............4... 16 7.Useof IDA Resouiax ............... ......... 4.4 20 MAP IBRD 1865OR This o t hs * es d dttbu* s ma be ue by v a. od bn te oan Otk.ir ofICia dute Its contoo oM ot o*uw be diWlOed whout W oa l  -- (CRIEDiT 1592-HA) Ths sthe Project Compleion Report MMC) for the Fourth Maeducton and Thh4na Project in Hait, for which Credit 1592-HA in the axmot of SDR 10.4 million(US$10.0 mllion equialnt) was approved on May. 7, 1985. Ih Governmet of Switzedland provkded a Sop mut (No. 140-1360) of SwF 15.0 amiion (US$6.0 milIHon or SDR 6.2 umIionk equivalent). The Credit was closed on.March 31, 19929 durin the period of susenion of IIDA activities, which reulted from the September 1991 coup d'etat; the aflrsdbalane of SDR 2.1 milon (roughly US$3.0 million equivalent) was cancelled on March 1, 1993. Tis& PCR was prepared by the Population and Human fesources OpemAions Division of the Latn Amera and. the Carbea Country Deatment M. t contain only the Bank's contiutfion (Pats I and Ill. The Bornwer's evaluaio (Part Ii) is not includedwsne the Bank does not have reations with the Ppation of his PCR is based on an aAysis of the Staff App1a0. RPOr CatAgwemet and smutm det prso eot;cTVne betee IMA and the Bworwer, te piqaatoy work for the foloW-up operation (Ud;$QnV PmrJe); and iriew with Bank staff involved in p15 Ihe and Ic 3, 19, dmTe tepeiod of IA actve In HDA has preclehid Md. work and dsui with aitian tortis nolved in poject  - iii - KYALU&= SLEdAX . The pret was designed to support the second phase of t Governme's educaton refom prgrm by: Oi enhanrding t cveg, qlty an efficiec of bsic educato () expann ad improving tcha nd vocatinAl education ad ainig (TVB1) programs; Oi educato secto an; (IV) impving public a(L-istVIdon trining. The basc education component Wa ntd to supoers I working conditions of school Insector and teach through the pmvision of alary spplements, hies, and materil curricula design; txtbookand itcon mate fo te pi cdasom beefitng frm the rm progam; and in-svice utining in the nw curricula The te1ctvocationa cmpone aimed to sWppot the implementai the f progrm in a selecd numbr of vocatina ting cents, to be equped i In some ca m lld, as wiell as curiaclum design, and scholarshp for inst.ctr. The seco was intndd to strengthen the Misty of Education (ME) Naional Pedagogical nst (IPN) d the Nain ist for Vocaioa Tning (FP) duDg thil assistance comuters, cllowshi. and taing. Th pubc administratn tcomponet a1ved to support the etab s and equipping of an in-servic n cen for pubit as wel as tehic assn and -fellowshps. ii The policalbul e which followed the Foru 1986 ose of Prsidt Duvalier had an adverse effec on proect ion (pam 11). Durn 1986-90, the education refm became ts of nine ministers of education. h led to lack of rong, continu om mimet t form, as ministes came to power with their own agndas nd wero m p d with i pitical survival As a result% the projec and the refom did not receive thestrog leadfhip, poli support, and sense of ownersI i required.ap turnover of Germents also rst in numerous chnges in prject m at with the Ptrect Unit (PM) bving six Direo during the li of the prject. This resulted in la of continuity and delays in prj$ect and OomdoboLut, lack of adherence to nk procedures. fl. The project o ffed fm serious weakesss in fianacl po s (pras. 12-13), which was refected In poor record keeping, reuret episodes of _sE to -IDA of withdrawa aplatios containing Inligle editus and in a few cas, miuseo hands. nstio benfit fm the projed we proied withadvances on the bass of annuial work prgrms, but often prved unable to acount for - sums of project fundS for extedd p od fim The uditing fm foud that ldge wer not p ,ery ket, vouchers wer inaccrte, accunt we no't reconciled, and the financial wen ofte not dequaty staffed. Lackof rigorous fnancil cotrol measurled to the witdraalof some fands for Ineligibl exenditre. iv. 'The deprtu om appri was tt t cdi, which wa supposd in be disbued oerfive years (Le,. 198690), wa closed o Mach 31, 1992 (par. 14). Th outsE balance of rougy 8DR2.1 milo (US$3.0 milion equv was caelled on March 1, 1993, 15 months after IDA noted the' Govenmen of dthe of  - iv - DA activities folkwin the September 1991 coup d'ett Te were also four introduced to the Credit Agment, which involved, 4a Aft, increasing MDs dse of some civil w s acWvities from 35 to 85 percent; exanding alwy to pivat scto staff; and tbnfing the spe accout to the Centra Bank v. As in prvio IDA educadon projects, shordg of count fumding was n importat obdacle to pject tti, feling delays (par. 15). Whle tBank team sougt auances during nepda on the timely provision o fiuds, in pracice this did not occur, and IDA agreed to Inc its dre of some ci work activities. In pte of the imporbtnce attce to ag in-house procur t cap tes in the Projtt Completion Report (PCR) for the prvo IDA-funded educaon in, he pject stil vi. The poject ri were genely wel identified by the apal team ev though 'staff unovee and 'lack of stog polit swp for the eduation re' shoud hae also ben added to the Ist (pam 1'7). vii The analysis of prject results has been hampeed by the inabit to cy Ou Id work, de to the susxnsion of IDA acviis, and to lack of detl inran on prjct im (pares. 18-19). In compan disb bDxeent appo isal tagets, t equimet ind fmniure, and tbooks categories wer virtuy fuly disbusd, whie disburement fcivil wo actvitie rched about 70 pert of apraisal In contst, tbe ggilea -salarie reached about 14,000 peon3 _ guef a 67 pect i_cmm over appmisal _*gaL Assuming that the various inputs (e.g., teitboos stuctional matrals, equpment and fu t ta were prvided in a tmey and cim a, ne can deduce that there was a discernible W%P in te learning enviromet of the taret schools. Nevertheles, the prctice at teachg materls late kin th ool year ad of not as reSind ta tD _ schools, which were common problems in the past, would bave umited the effectvens o te IDA hms_. It is unclea what impact the sala supplements had on tecer and productvity, and wheter tee fuids wer managed in a ban &sin dwD beded be, d a,w, v iii. T he go of t education fi pgram of ep e secto in i of the reform yieed genrally posive resuls eve hou there is a scarity of detd inmon on 0th tar schls (pam 20). The reut ahived in refinforin Covrnment intttonlonia responsible for imleeti thereor OME, IvN, fINP?, Consutaive Counc) left much to be desied (pa. 21). Staff turno and lack of Song polic commiment thwarted efors to sengthen the Minstry of uthio. Soon Omeprjec theMinistry of ,ducaton took away some of theduatof Ihe IPN and created parallel units in the Ministry, which resulted in a dispe lon of scam resources, and ultimately, the closure a