REPUBLIC OF COTE D'IVOIRE EDUCATION IV PROJECT COMPLETION REPORT INTER-DEPARTMENTAL WORKING GROUP MEETING REPORT I. INTRODUCTION The interdepartmental working group meeting on the Education IV Project was held on Monday 23 April 2007 in Room 323 of the Bank’s ATR Building. Present at this meeting were the following: Messrs J. E. PORGO, Acting Division Manager, OSHD.1, Chairperson R. KANE, Country Economist for RCI, ORWA S. AMADOU, GECL.1 C. DIGUIMBAYE, FFCO.3 ORPU and EDRE.1 sent their comments in writing. After a brief presentation of the report by the authors, the Chairperson asked the members of the working group to review the report, starting with the general comments before moving on to the specific ones. This report gives a summary of all the discussions, comments, conclusions and recommendations made by the working group members. II. SUMMARY OF COMMENTS A. General Comments With regard to general comments, the members of the working group asked that the report provide further detailed explanations of observations made. They asked for an explanation as to why there was no project preparation and why there was a delay in project implementation. They suggested that further details be provided of the negotiations, the risk analysis planned at the inception of the project be undertaken, and the lessons and recommendations be reviewed. To this end, lessons must be learnt from the splitting up of contracts and the relevant recommendation made. The participants were also of the view that the performance appraisal needed to be revised, and that the report needed to specify the project’s link with the Bank’s CSP for that period as well as address the issue of the conflict in the RCI and link it to that of the sustainability of the project outcomes. B. Specific Comments Specific comments from the participants related to the clarification of points made in the observations contained in the document, and the need to add more details, with explanation. III. CONCLUSIONS AND RECOMMENDATIONS In conclusion, the members of the working group asked the authors to incorporate the points raised to improve the document.
Transcript
REPUBLIC OF COTE D'IVOIRE
EDUCATION IV PROJECT COMPLETION REPORT
INTER-DEPARTMENTAL WORKING GROUP MEETING REPORT
I. INTRODUCTION The interdepartmental working group meeting on the Education IV Project was held on Monday 23 April 2007 in Room 323 of the Bank’s ATR Building. Present at this meeting were the following: Messrs J. E. PORGO, Acting Division Manager, OSHD.1, Chairperson R. KANE, Country Economist for RCI, ORWA S. AMADOU, GECL.1
C. DIGUIMBAYE, FFCO.3
ORPU and EDRE.1 sent their comments in writing. After a brief presentation of the report by the authors, the Chairperson asked the members of the working group to review the report, starting with the general comments before moving on to the specific ones. This report gives a summary of all the discussions, comments, conclusions and recommendations made by the working group members.
II. SUMMARY OF COMMENTS
A. General Comments With regard to general comments, the members of the working group asked that the report provide further detailed explanations of observations made. They asked for an explanation as to why there was no project preparation and why there was a delay in project implementation. They suggested that further details be provided of the negotiations, the risk analysis planned at the inception of the project be undertaken, and the lessons and recommendations be reviewed. To this end, lessons must be learnt from the splitting up of contracts and the relevant recommendation made. The participants were also of the view that the performance appraisal needed to be revised, and that the report needed to specify the project’s link with the Bank’s CSP for that period as well as address the issue of the conflict in the RCI and link it to that of the sustainability of the project outcomes.
B. Specific Comments Specific comments from the participants related to the clarification of points made in the observations contained in the document, and the need to add more details, with explanation.
III. CONCLUSIONS AND RECOMMENDATIONS
In conclusion, the members of the working group asked the authors to incorporate the points raised to improve the document.
AFRICAN DEVELOPMENT BANK
REPUBLIC OF COTE D'IVOIRE
EDUCATION IV PROJECT COMPLETION REPORT
Loan N° ADB/BD/WP/92/86
HUMAN DEVELOPMENT DEPARTMENT (OSHD) OCTOBER 2007
TABLE OF CONTENTS
Page
CURRENCY EQUIVALENTS, WEIGHTS AND MEASURES, ACRONYMS AND ABBREVIATIONS, LIST OF ANNEXES, EXECUTIVE SUMMARY, CONCLUSION AND RECOMMENDATIONS, BASIC DATA AND PROJECT MATRIX i-xii 1 INTRODUCTION 1 2 PROJECT OBJECTIVES AND FORMULATION 1 2.1 Project Objectives 1 2.2 Project Description 1 2.3 Project Formulation 2 3. PROJECT IMPLEMENTATION 3 3.1 Effectiveness and Start-Up 3 3.2 Modifications 4 3.3 Implementation Schedule 4 3.4 Quarterly Activity Reports and Auditing . 6 3.5 Procurement of Goods, Works and Services 6 3.6 Costs, Sources of Financing and Disbursements 7 4 PROJECT PERFORMANCE 8 4.1 Operational Performance 8 4.2 Institutional Performance 11 4.3 Performance of Consultants 12 4.4 Performance of Contractors 12 4.5 Performance of Suppliers 12 5 SOCIAL AND ENVIRONMENTAL IMPACT 12 5.1 Social Impact 14 5.2 Environmental Impact 14 5.3 Impact on Women 14 5.4 Impact on Poverty 15 6. SUSTAINABILITY 15 7. PERFORMANCE OF THE BANK AND THE BORROWER 16 7.1 Performance of the Bank 16 7.2 Performance of the Borrower 16 8. OVERALL PERFORMANCE AND RATING 17 9. CONCLUSION, LESSONS AND RECOMMENDATIONS 17 9.1 Conclusion 17 9.2 Lessons 18 9.3 Recommendations 19
This report was prepared by Ann Dao Sow, Education Expert, and two Consultants, following a project completion mission to the Republic of Côte d'Ivoire from 18 December 2006 to 1st January 2007. Further enquiries should be addressed to Mr. T. HURLEY, Director OSHD (Ext. 2046) and Mr. A. de ROQUEFEUIL, Division Manager OSHD.1 (Ext. 2184).
CURRENCY EQUIVALENTS At Project Appraisal (April 1992) At Project Completion (January 2007)
UA 1= CFAF 381.858 UA 1 = CFAF 749.293 UA 1= US$1.37174 UA 1 = US$ 1.50440
METRIC SYSTEM 1 metre = 3.28 feet 1 square metre (m2) = 10.76 square feet 1 hectare (ha) = 2.47 acres 1 square kilometre (km2) = 0.38 square miles
FISCAL YEAR
1st January – 31st December
ACRONYMS AND ABBREVIATIONS ADB African Development Bank ADF African Development Fund BD Bidding Documents BNETD National Technical Research and Development Department CAA Autonomous Sinking Fund CFAF CFA Francs CNO Centre, North and West Zone CP Educational Adviser DCGTx Department of Public Works and Inspection (now BNETD) DELC Department of Basic Education, Junior Secondary and High Schools DIPES Department of Information Technology, Planning, Evaluation and Statistics DREN Regional Directorate of National Education DRF Request for replenishment of revolving fund GER Gross Enrolment Rate HRDP Human Resource Development Programme IEC Information, Education and Communication IEP Primary Education Inspector/Primary Education Inspectorate KfW Kreditams fur Wiederaufbau MCU Ministry of Construction and Urban Planning MECU Ministry of the Environment, Construction and Urban Planning MEN Ministry of National Education OPEC Organisation of Petroleum Exporting Countries PAMES Macro-Economic and Social Adjustment Programme PAS-RH Structural Adjustment Programme- Human Resources PIU Project Implementation Unit S/DBS Sub-Directorate of School Buildings SAP Systems Applications and Products SIGFIP Integrated Public Finance Management System SYSCOA West African Accounting System TCF Technical Consulting Firm UA Unit of Account
ii
LIST OF ANNEXES Number of pages
Annex1 Country Map showing Project Sites 1 Annex 2 Sources of Information 2 Annex 3 Estimated and Actual Project Costs by Category of Expenditure 1 Annex 4 Estimated and Actual Schedule of Disbursements 1 Annex 5 Project Implementation Performance 1 Annex 6 Impact on Development 2 Annex 7 Recommendations and Follow-Up Matrix 2 Annex 8 Tables of Primary and Secondary Education Gross Enrolment Trends 1 Annex 9 List of Contractors and Suppliers 4 Annex 10 Borrower’s Observations on Project Completion Report 19
iii
EXECUTIVE SUMMARY 1 The Education IV project, which forms the subject of this completion report, is the fourth Bank Group operation in the sector in Côte d'Ivoire. The project, which cost a total of UA 59 million, was financed with an ADB loan of UA 53 million that was signed on 16 October 1992 and became effective on 11 February 1993, i.e. 4 months later, as well as with a Government contribution of UA 6 million. Its objectives were to (i) restore the functionality of the existing primary and secondary school facilities; (ii) provide primary schools in regions where they are seriously lacking; (iii) reduce student migration to and from secondary schools by building new schools in areas where they are lacking; (iv) introduce environmental awareness among the general public and design instructional packages for primary schools; (v) set up a programming tool for the streamlining and coordination of actions geared towards staff and facility planning; (vi) increase the enrolment rate, especially that of girls in the remote areas of the country’s north; (vii) support the primary objectives of the Structural Adjustment Programme-Human Resources, namely to improve access to primary education, upgrade the quality of the educational system and adapt school curricula to realities. The project had six components including (i) strengthening of primary education; (ii) strengthening of secondary education; (iii) increased enrolment in rural areas; (iv) introduction of environmental studies; (v) school map support; and (vi) project implementation. 2 The project as designed met the needs identified at the time of its appraisal. The implementation schedule was not adhered to due to the lengthy delays in the processing of documents by the Bank and the Borrower and the suspension of disbursements for non-payment of arrears, among others. Upon completion, the project cost, net of all taxes, was estimated at UA 54.65 million, representing 92.62% of the total project cost. The Bank financed UA 49.53 million or 93.46% of the loan amount estimated at appraisal. The actual government counterpart funding was UA 5.11 million, or 85.23% of the expected national contribution. 3 At the institutional level, the project provided support to the Department of Information Technology, Planning, Evaluation and Statistics, which it equipped with IT equipment that enabled it to produce better designed and more precise school maps. Environmental studies was introduced into the educational system. The Project Implementation Unit and its regional offices were established and have acquired a solid experience in project implementation. Improved accessibility and better teaching and learning conditions have been achieved in the project areas through the building and rehabilitation of facilities and provision of the educational institutions with furniture, equipment as well as learning and teaching materials. A significant rise of 17.56% was observed in pupil numbers in the target regions, where those numbers increased from 1 735 814 in 1996-1997 to 2 113 836 in 2001-2002. The number of girls in the deprived Centre, North and West (CNO) regions went up from 91 925 in 1991-1992 to 132 812 between 1995 and 1997, representing an increase of about 31%. However, despite the increased intake capacity of primary and secondary education, with the current socio-political crisis the teacher/pupil ratio remains high in the southern parts of the country, where the schools operate double shifts. This adversely affects the durability of the facilities, furniture and equipment. It would therefore be strategic to take measures to increase the financial resources of the Management Committees (COGES).
iv
4 The performance of the consultants is satisfactory. That of the SMEs that served as contractors and suppliers is deemed fair in view of the lapses observed. The delay observed in the implementation of works stems from a number of factors including (i) the suspension of disbursements; (ii) the splitting up of the sites for construction and rehabilitation works into small lots, scattered nationwide, and awarded to 397 SMEs; (iii) the introduction of the Integrated Public Finance Management System (SIGFIP), which was poorly mastered by personnel in the public expenditure chain, and lastly, (iv) the deterioration of the socio-political situation from September 2002, which was entirely beyond the control of most of these partners. Several lessons have been learnt from the analysis of the project’s implementation: The first lesson relates to the importance of the Bank participating in project identification and preparation. The underestimation of the rehabilitation works was a contributing factor to the cost increase and the delays in project implementation. In addition, there was an obvious risk in the selection of SMEs for the execution of the construction and rehabilitation works. Their large number coupled with their lack of experience and weak financial base contributed to slowing down the implementation of the project. The consolidation of contracts and the selection of contractors with significant technical resources and a proven financial base would have facilitated the management of the project. 5 The second lesson relates to the setting up of the SIGFIP during project implementation. This situation delayed payments to contractors and suppliers and affected the implementation performance. The third lesson learnt is connected to the decision to undertake supplementary activities during project implementation, which gave rise to the same consequences. The fourth lesson relates to the need to ensure that project accounts are audited on a regular basis for sound and effective management. In this instance, only one audit was conducted for the entire 10-year duration of the project. The last lesson relates to measures to be taken to ensure the sustainability of the facilities, within a context characterised by conflict, where maintenance of the facilities and equipment acquired poses a major challenge. To this end, good citizenship education, combined with training of the beneficiaries in the maintenance and repair of public property as well as providing commensurate financial resources for this purpose should contribute to ensuring that public property, in general, is maintained and that more value is attached to its sustainability. Furthermore, the elimination of the sewage lagoon at the Houphouët Mamie Faitai High School in Bingerville is urgently necessary in order to prevent malaria epidemics. 6 Recommendations In view of the foregoing, the following recommendations were made:
A. To the Bank:
(i) ensure adherence to the project cycle for the design of realistic projects for which the conditions of implementation contribute to optimum efficiency.
(ii) ensure the consolidation of contracts so as to facilitate the
coordination of project implementation, and cut back on implementation schedule slippages;
v
(iii) ensure more effective project monitoring and ask the government to finalise the auditing of project accounts for the following fiscal years: 1999, 2000, 2001, 2002, and 2003;
(iv) avoid approving supplementary activities when projects are drawing
to a close, in order not to create financing problems that lead to the non-completion of the activities started;
(v) make the putting in place (by the government) of a permanent
mechanism for the maintenance and repair of facilities and equipment, a condition precedent to loan effectiveness; this would help create favourable conditions for sustainability.
B To the Government:
(v) take the necessary measures to finalise the auditing of project
accounts for fiscal years 1999, 2000, 2001, 2002,and 2003;
(vi) put in place a permanent mechanism for the maintenance and repair of facilities and equipment purchased, through the technical and financial strengthening of the COGES, and undertake public education on good citizenship, in order to ensure the sustainability of pubic investments;
(vii) plan the refurbishment of facilities damaged in the war so as to make
them operational for the reopening of the 2008 academic year ;
(viii) take the necessary measures for the completion in 2007 of the Kouassidatékro College from its own resources, in order to make use of the investments already made on the site;
(ix) systematically mainstream the introduction of environmental studies
in all primary and secondary school curricula, in order to ensure the sustainability of project gains in this area;
(x) take the necessary measures to eliminate the sewage lagoon of the
Houphouët Mamie Faitai High School in Bingerville, which poses a health hazard for the school population, and to equip the school with a standard system of septic tanks, so as to prevent malaria outbreaks;
PROJECT BASIC DATA BRIEF
1. Project Name : Education IV Project 2. Loan Number : ADB/BD/WP/92/86 3. Borrower : Republic of Côte d'Ivoire 4. Guarantor : Republic of Côte d'Ivoire 5. Beneficiary : Ministry of Education 6. Executing Agency : Project Implementation Unit
vi
A. LOAN Estimates at Appraisal
1. Amount (UA million) : 52.956 2. Interest Rate : Variable 3. Service Charge : 1% per annum 4. Repayment period : 20 years 5. Grace Period : 5 years 6. Loan Negotiation Date : 12/08/1992 7. Loan Approval Date : 01/10/92 8. Loan Signature Date : 16/10/92 9. Loan Effectiveness Date : 11/02/93
B. PROJECT DATA 1. Project Cost (in UA million)
Sources of Financing Amounts Estimated in the Loan Agreement
Actual Ex-penditure % Utilised % Un-utilised
ADB 53 49.53 93.46 6.54 Government 6 5.11 85.23 14.77
Total 59 54.65 92.62 7.38
2. Financing Plan at Appraisal (in UA million)
Sources of Financing Foreign
Ex-change
% Foreign
Exchange Cost
Local Currency
% Local Currency Total %
ADB 41.800 100 11.2 65.12 53 89.83 Government - - 6 34.88 6 10.17 Total 41.800 100 17.2 100 59 100 % of total cost 70.85 29.15 100
3. Actual date of first disbursement : 08/04/93 4. Actual date of last disbursement : 15/12/2000 5. Start-up of project implementation activities : 30/03/93 6. Completion of project implementation activities : 29/07/04
C. PERFORMANCE INDICATORS 1. Balance in % : 7.38 % 2. Delays compared to schedule : 5 year Slippage on effective date : 1 months Slippage on completion date : 60 months Slippage on final disbursement deadline : 36 months Number of extensions of final disbursement deadline : 2
vii
3. Status of implementation : Closed 4. List of verifiable indicators : Percentage of implementation A. Studies and supervision : 100% B. Construction/Rehabilitation : 89% C. School Materials : 99% D. School Furniture : 90% E. Sundry Equipment : 98% F. Technical Assistance : 100% G. Training : 100% H. Operating Costs : 91% 5. Institutional Performance Bank : Fair Government : Unsatisfactory 6. Performance of Contractors : Fair 7. Performance of Suppliers : Fair 8. Performance of Consultants : Satisfactory
OBJECTIVELY VERIFIABLE INDICATORS HIERARCHY OF OBJECTIVES AT APPRAISAL AT COMPLETION
MEANS OF VERIFICATION ASSUMPTIONS/RISKS
Sector Objectives
1. Improve the quality of education, increase the enrolment rate, especially that of girls and of remote areas with a view to achieving a GER of 90% in 2000.
1.1 The current repetition rate of 29% observed decreases significantly as from 19981. 1.2 The GER increases from 71% in 1992 to 90% in 2000.
1.1 The overall repetition rate dropped from 29% in 1991 to 24% in 2005. 1.2 The GER rose from 73% in 1993 to 79.5% in 2001/022, of which 67.3% were girls, and to 54.4% in 2004/05, of which 49.1% were girls.
1.1.1 DIPES statistics (MEN) 1.1.2 IDEM
Project Objectives
1. Restore functionality to existing primary and secondary school facilities.
1.1 2 250 primary school classrooms and 500 junior secondary and high schools are rehabilitated and operational as from 1998
1.1 1 140 primary school classrooms and 31 junior secondary and high schools were rehabilitated and equipped with furniture and teaching materials, and have been operational since 1998.
1.1.1 Report of the Sub-Directorate of School Buildings, the PIU and the Bank’s supervision missions.
1.1.1.1 The dispersal of sites does not hamper the putting up of the facilities.
2. Provide primary schools in regions where they are seriously lacking
2.1 The number of public primary schools increases from 6 150 in 1991 to 6 317 in 1998. 2.2 Primary school enrolment rises to 1 447 785 in 1991.
2.1 The number of public primary schools rose from 6 150 in 1991 to 6 317 as from 1998. 2.2 Primary school enrolment rose from 1 735 814 in 1996/97 to 2 113 836 in 2001/2002, representing an increase rate of 17.56%.
2.1.1 MEN statistics 2.2.1 IDEM
2.1.1.1 The socio-political situation is conducive for implementation of the project 2.2.1.1 IDEM
3. Reduce student migration to and from secondary schools by building new schools in areas where they are lacking.
3.1 The 5 regions targeted receive 8,000 additional students each year, as from 1998 3.2 The secondary school student population increases significantly in 1998.
3.1 The five regions targeted received 8,000 additional students each year as from 1998. 3.2 Secondary school enrolment rose from 396 606 in 1991 to 682 461 in 2002; the GER of secondary education went up from 18.1% in 1994/95 to 20.17%, of which 16% were girls in 2005
3.1.1 MEN statistics 3.2.1 IDEM
3.1.1.1 IDEM 3.2.1.1 IDEM
4. Introduce environmental awareness among the general public and design instructional packages for primary schools.
4.1 Environmental studies modules are designed, environmental studies textbooks are produced, films and advertisements are designed and broadcast, environmental
4.1 The environmental studies modules for middle to upper primary classes have been introduced into the primary school curriculum; public awareness campaigns conducted among the public has had a positive impact on the environment of
4.1.1 DELC, PIU and Bank supervision mission Reports.
4.1.1.1 Introduction of new textbooks, taking into account the environmental studies modules designed.
1 The Appraisal Report does not provide the repetition rate to be attained in 1997/98. 2 2002 marked the beginning of the socio-political upheavals (rebellion) in Côte d'Ivoire
x
OBJECTIVELY VERIFIABLE INDICATORS HIERARCHY OF OBJECTIVES AT APPRAISAL AT COMPLETION
MEANS OF VERIFICATION ASSUMPTIONS/RISKS
awareness and training seminars and competitions are organised for schools
schools.
5. Set up a programming tool for the streamlining and coordination of actions geared towards staff and facility planning.
5.1 The DIPES and staff of the 10 regional directorates use autonomously the IT tools purchased. Maps incorporating data on school location and statistics are produced in 1998.
5.1 In 1999, the primary school map was updated, that of secondary schools was produced, the Geographical Information System (SIG) became operational and a programme for triennial constructions was drawn up; the DIPES produced maps with statistical and geographical data by region, by department and by sub-prefecture.
5.1.1 DIPES, PIU and Bank supervision mission reports
5.1.1.1 The IT equipment is renewed and the budget maintained.
6. Increase the enrolment rate, especially that of girls in the remote areas of the country’s north
6.1 The GER for girls in the remote northern parts of the country is expected to increase as from 19983
6.1 The GER for girls in the targeted areas increased by 24% in two years, i.e. between 1995 and 1997
6.1.1 DIPES statistics and PIU report.
6.1.1.1 The socio-political situation is conducive for project implementation.
7. Support the primary objectives of the SAP-Human Resources.
7.1 The SAP-HR objectives are achieved in 1998.
7.1 The objectives of the SAP-HR were partially achieved due to the September 2002 socio-political crisis.
7.1.1 Reports of the Sub-Directorate of School Buildings, the PIU and Bank supervision missions
7.1.1.1 The Human Resource Development Programme (HRDP) is maintained by the government.
Outcomes 1.1 1 001 new classrooms or (167 schools) and related works are built and equipped with furniture and teaching materials. 1.2 240 schools out of 375 are refurbished and equipped with furniture and teaching materials
1.1. As from 1998, about 50 100 additional pupils are admitted into primary school each year. 1.2 350 new teachers are recruited for the new schools and 750 are redeployed as from 1998.
1.1 From 1998, about 50 100 additional pupils were admitted into primary school yearly. 1.2 350 new teachers were recruited for the new schools and 750 redeployed in 1998
1.1.1 Minutes of works acceptance; Inter-Ministerial Committee and Bank supervision reports; PIU activity reports 1.2.1 Supervision reports of the Inter-Ministerial Committee and the Bank ; PIU activity reports
1.1.1.1 The PIU branch offices, BNETD and MECU ensure proper site supervision; bid invitations are issued and contracts are executed. 1.2.1.1 The architectural and technical designs are prepared; invitations to bid issued and contracts executed.
2. Ten Base 4 junior secondary schools are built and equipped with furniture and instructional materials; 50 junior secondary schools are rehabilitated and 30% equipped with furniture; 120 instructors of the rehabilitated or newly built institutions are trained in first aid techniques.
2.1. As from 1998, secondary education admits 8 000 additional students each year. 2.2 120 instructors are trained in first aid and perform their duty in the schools.
2.1 From 2006, secondary education admitted about 24 000 additional students each year, and a double-shift system was introduced. 2.2 120 instructors were trained in first aid techniques and performed these duties in the schools.
2.1.1. Works acceptance reports; supervision reports of the Inter-Ministerial Committee and of the Bank ; PIU activity reports 2.2.1 IDEM
2.1.1.1. IDEM 2.2.1.1 IDEM
3. Rural enrolment is increased.
3.1. Yearly textbook and class manual lending to 100 000 girls in the rural areas of the country’s north, as a priority, is organised for two years.
3.1 934 956 textbooks and consumables were procured and distributed to 132 812 girls between 1995 and 1997.
3.1.1 Supervision reports of the Inter-Ministerial Committee and the Bank; PIU activity reports
3.1.1.1 The specialists recruited perform their contract
3 The Appraisal Report does not provide details of the GER for remote areas.
xi
OBJECTIVELY VERIFIABLE INDICATORS HIERARCHY OF OBJECTIVES AT APPRAISAL AT COMPLETION
MEANS OF VERIFICATION ASSUMPTIONS/RISKS
3.2 Awareness campaigns with the production of 30 radio and television 30-minute broadcasts are organised by Inter-Ministerial teams, 1 film on investing in education is produced and disseminated 3.3 Training seminars are organised for 56 educational advisers, 28 inspectors and 5 DREN in the management of the school textbook lending programme
3.2 Community awareness campaigns/were organised, 30 radio and television 30-minute programmes were broadcast, 20 000 posters were produced and distributed; and information and awareness film on investing in education was produced and disseminated. 3.3 Training seminars were organised for 56 educational advisers, 28 inspectors and 5 DREN in the management of the textbook lending programme and in IEC; a study was conducted on the trend of enrolment of girls in 20 of the 28 Primary Education Inspectorates (IEPs) covered under this component 3.4 Five pick-ups were procured for textbook distribution.
3.2.1 IDEM 3.3.1 IDEM 3.4.1 Vehicle delivery reports.
3.2.1.1 IDEM 3.3.1.1 IDEM 3.4.1.1 Invitations for price quotations are issued and contracts awarded
4. Environmental studies introduced into the system.
4.1 Environmental course modules are designed between 1993 and 1998. 4.2 Environmental studies textbooks, 6 films and 5 advertisements are produced 4.3 Training seminars are organised for 150 personnel in 10 DREN 4.4 Competitions on the environment are organised for schools. 4.5 Awareness campaigns are organised.
4.1 The modules for middle and upper primary have been prepared 4.2 27 000 textbooks for Class 3 and Class 4 and 28,000 textbooks for Class 5 and Class 6, or 55 000 environmental studies textbooks, were procured and distributed in the 10 DREN and 6 films and 5 advertisements were also produced and disseminated.. 4.3 Four training seminars on environmental sciences and the formulation of environmental education programmes were organised for 100 national, regional and departmental directors, 150 MEN officials and 100 educational advisers; 4.4 6 102 environmental cooperatives and clubs were set up, and competitions were organised. 4.5 824 primary and secondary school teachers, 194 200 pupils and students as well as vendors selling near primary schools were sensitised; 40 journalists were trained in addressing environmental issues in the media. 4.6 250 IEP and DREN extra-curricula advisers and secondary school teachers were trained in the formulation of specific objectives and instructional content of the primary school environmental studies curriculum 4.7 Workshops were held in the IEPs and 6 pilot DREN for 240 teachers to provide in-depth training in basic
4.1.1. DELC, PIU and Bank supervision mission Reports. 4.2.1 IDEM 4.3.1 IDEM 4.4.1 IDEM 4.5.1 IDEM 4.6.1 IDEM
4.1.1.1 Specialists recruited perform their contracts 4.2.1.1 Invitations to bid are issued and contracts are signed. 4.3.1.1 The training programmes are conducted and community campaigns are organised; the specialists recruited honour their contract 4.4.1.1 IDEM 4.5.1.1 IDEM 4.6.1.1 IDEM
xii
OBJECTIVELY VERIFIABLE INDICATORS HIERARCHY OF OBJECTIVES AT APPRAISAL AT COMPLETION
MEANS OF VERIFICATION ASSUMPTIONS/RISKS
environmental education; two officials of the Department of National Education participated in a 10-week environmental education course at the Fontenay/Saint-Cloud Teacher Training College.
4.7.1 IDEM
4.7.1.1 IDEM
5. A programming tool for the streamlining and coordination of actions geared towards staff and facility planning is set up.
5.1 A computerised planning tool for the siting of schools and staff management is put in place in 1998. 5.2 Training of 2 computer engineers in geographical management information systems and of 26 regional officers in data collection and processing and editing of results
5.1 IT equipment comprising one mini-computer, micro-computer, printers, wall map printer and software including GEOCONCEPT were procured; a network was installed at DIPES. The DREN were equipped with micro-computers and consumables while recurrent costs were covered for two years. 5.2. Two 2 MEN computer specialists were trained abroad, while 131 inspectors, 11 DIPES regional agents and 200 secondary school heads also underwent training. The Access, Unix and Oracle training sessions planned for 4 DIPES officials, as part of the on-site technical assistance and support were not held.
5.1.1 PIU and Bank mission reports 5.2.1 DIPES report and minutes of training sessions
5.1.1.1 Invitations to bid are launched and contracts signed. 5.2.1.1 Training is provided
6. The Project Implementation Unit is set up and functioning
6.1 The PIU and its 9 regional offices are set up, their premises are refurbished and equipped with office furniture and equipment, vehicles and motorcycles, the staff is trained in micro-data processing, and they are operational. 6.2 The technical assistance team comprising 1 Administrator/Manager, 1 teaching aids specialist, 1 environmental education specialist and 1 procurement specialist is recruited.
6.1 The PIU and 7 regional offices were set up, equipped with office furniture and equipment, and are operational. One vehicle for each regional office, three 4-wheel-drive vehicles and 4 saloon cars, including a liaison vehicle, were purchased; the staff was trained in micro-computing. Operating costs were covered. 6.2 The Administrator/Manager, 3 Architects, 1 Communication Specialist and 1 Educationist have completed their contracts.
6.1.1. PIU and Bank supervision reports 6.2.1 IDEM
6.1.1.1 Limited shopping is conducted and contracts are awarded 6.2.1.1 IDEM
1. Architectural Designs 2. Building of Facilities 3. Procurement of Goods 4. Training of Trainers 5. Awareness Campaigns 6. Institutional Capacity Building 7. Project Management and Monitoring
Budget Resources (in UA million)
Source Estimated Actual % BAD 52.95 49.53 93.54 GVT 5.95 5.11 85.95 Total 59 54.65 93.53
1.1.1 Status of disbursements and Bank mission reports.
1.1.1.1. Government and ADB funds are released to the project
1. INTRODUCTION 1.1 The Bank previously financed three operations in the education sector in Côte d’Ivoire: UA 16 million awarded for the construction of two vocational high schools; UA 13.20 million for the Regional Academy of Marine Science and Technology (ARSTM); and UA 58 million for the Structural Adjustment Programme-Human Resources (SAP-HR) from which the Education IV project was derived. The latter therefore constitutes the fourth Bank Group intervention in the sector in Côte d’Ivoire, and it forms the subject of this completion report. The total cost of the project was UA 59 million including an ADB loan of UA 53 million and a government contribution of UA 6 million. It was approved on 1st October 1992 and the related loan agreement was signed on 16 October 1992 and became effective on 11 February 1993. Its sector goal and specific objectives are presented in paragraph 2.1 below. 1.2 This report was prepared based on the outcome of the Bank mission’s to Côte d’Ivoire in December 2006, available data at the Project Implementation Unit and at the Bank, discussions with the central departments of the Ministry of National Education (MEN), heads of establishment, teachers and the Management Committees (COGES) of the schools visited. Due to the insecurity prevailing in parts of the country, the mission was only able to visit primary, junior secondary and high schools located in the country’s South. Annex 2 provides details of the sources of information used in preparing the report. II. PROJECT BJECTIVES AND FORMULATION 2.1 Project Objectives 2.1.1 The sector goal was to improve the quality of education, increase the enrolment rate, particularly, that of girls and of remote areas, with a view to meeting the cardinal goal of the Human Resource Development Programme, i.e. a national gross enrolment rate of 90% by the year 2000. The specific objectives were the following: (i) restore the functionality of the existing primary and secondary school facilities; (ii) provide primary schools in regions where they are seriously lacking; iii) reduce student migration to and from secondary schools by putting up new schools in areas where they are lacking; (iv) raise environmental awareness among the general public and design instructional packages for primary schools; (v) set up a programming tool for the streamlining and coordination of actions geared towards staff and facility planning; (vi) increase the enrolment rate, especially that of girls in the remote areas of the country’s north; (vii) support the primary objectives of the SAP-Human Resources, namely to improve access to primary education, upgrade the quality of the educational system and adapt school curricula to realities. 2.2 Project Description 2.2.1 The project, which was initially scheduled to be implemented over a period of five years, comprised five components. The main activities under Component 1 (Strengthening of Primary Education) involved (i) the construction of 1 000 classrooms (167 schools); (ii) the rehabilitation of 2 250 classrooms (375 schools) countrywide, representing a total of 3 250 classrooms built and rehabilitated; and (iii) the procurement of learning and teaching materials and of school furniture for the rehabilitated and/or newly constructed schools. Activities for Component 2 (Strengthening of Secondary Education) included (i) the
2
construction of 10 new Base 4 junior secondary schools; (ii) the rehabilitation of 50 junior secondary and high schools; (iii) the procurement of learning and teaching materials and of furniture for the schools built and/or rehabilitated; and (iv) training in first aid of 120 instructors of the new secondary schools. 2.2.2 Component 3 (Increased enrolment in rural areas) involved (i) the procurement of textbooks for 100 000 pupils in 5 DREN; (ii) the facilitation and holding of training seminars; and (iii) the production of 30 radio and television programmes, whiles Component IV (introduction of environmental education) entailed (i) the organisation of awareness campaigns on environmental issues in order to test the teaching modules; (ii) the production of 6 awareness films; and (iii) the formulation of environmental studies curricula. 2.2.3 Component V (School Map Support) consisted of (i) the procurement of IT equipment for the Department of Planning of the MEN and for the 10 DREN, and (ii) and the facilitation and holding of training seminars. Component VI (Project Implementation) involved (i) the setting up of the PIU and its 9 regional offices, within the DREN; (ii) the rehabilitation/construction of premises assigned to the PIU and its offices; (iii) the general equipping of the PIU and its regional offices with furniture, vehicles and IT equipment; (iv) the recruitment of the Technical Assistance team and local staff for implementation of the project; (v) training; and (vi) operation. 2.3 Project Formulation 2.3.1 The project was designed against a backdrop of rapid population growth and significant migration of persons, with an educational system characterized by major geographical and gender disparities, a weak internal capacity stemming from lack of learning and teaching materials in primary schools. In 1991, the national GER was 73% compared to less than 30% in the rural areas. During the same period, the percentage of girls enrolled in school was 43.7 while that of boys was 61.3. The repetition rate was about 29% and the dropout rate was 5%. In secondary schools, the learning environment was not conducive, with generally dilapidated laboratory equipment, poorly stocked libraries and dirty premises. The practice of pedagogical support and continuous training for teachers was absent from the system. It is also worth pointing out the equally important problem of poor human resource planning resulting in a lack of personnel in the deprived areas of the country. 2.3.2 Consequently, the primary education sub-sector was identified as a priority under the 1991 Structural Adjustment Programme-Human Resources (SAP-HR), which was funded by donors and had the following sector objectives: (i) facilitate access to primary education and upgrade the quality of 1st and 2nd cycle secondary education as well as strengthen their internal capacity; (ii) build policy planning and implementation capacities; (iii) improve personnel management, and (iv) adapt education to the needs of the working world. The broad thrust of the project was in line with the SAP-HR, and translated into emergency physical investments for the attainment of the key medium-term objectives, and particularly that of achieving a national primary education GER of 90% by the year 2000.
3
Preparation, Appraisal, Negotiations and Approval 2.3.3 On the basis of a request from the Government of Côte d’Ivoire, the Bank conducted an appraisal of the Education IV project in June 1992, using identification documents already prepared by the Government. It considered that the latter had from the onset provided adequate documentation to conduct the appraisal, especially as BNETD had at the time assisted the Government in the targeting of project areas. The Government had drawn up a 1992-1994 emergency investment plan taken from the SAP-HR, which recommended the increased rehabilitation and construction of primary and secondary schools as a means of concretely achieving the SAP objectives. An overall sector investment financing need of UA 234 million had been identified then for the duration of this period. On the basis of the needs expressed, the relevant government agencies prepared detailed designs for the priority ones, with cost estimates, and which the Government used to submit an official request to the Bank in January 1992. Thus, not only did the Bank not participate in the identification, but it also did not find it necessary to be involved in the project preparation stage. Following the appraisal mission, negotiations were held on 12 and 13 August 1992 during which the Ivorian party obtained the addition of the transformation into classrooms of the dormitories of 4 high schools out of the 50 establishments to be rehabilitated, and the assignment to each MECU regional office, one of the two vehicles provided for the PIU regional offices. The Loan Agreement was signed in Abidjan on 16 October 1992. III. PROJECT IMPLEMENTATION 3.1 Effectiveness and Start-Up 3.1.1 As conditions precedent to effectiveness of the Loan Agreement, the Borrower was required to send the following documents to the Bank: (i) the law establishing the Inter-Ministerial Technical Committee; (ii) the Memorandum of Understanding between MEN, DCGTX and MECU defining the areas of intervention, responsibilities and the division of tasks of each party in the implementation of the activities planned under the project; (iii) the instrument establishing the Project Implementation Unit (PIU) within the MEN; (iv) the instrument appointing a PIU National Director whose curriculum vitae must conform to his/her Terms of Reference; (v) the curricula vitae of the national technical staff assigned to the PIU for the Bank’s comments and approval; (vi) proof of the provision of adequate offices to the PIU and its regional offices; (vii) proof that textbooks are lent, as a priority, to girls in the regions covered by the “increased enrolment in rural areas” component; (viii) proof of regular budgeting for the recurrent expenditure of the project, particularly staff salaries, schools maintenance and teaching materials; (ix) proof of the opening of a special account into which project funds are paid, and (x) continued reallocation of the National Education budget in order to assign a greater proportion to teaching material expenses. 3.1.2 Other conditions to be fulfilled by the Borrower included: (i) a detailed work plan for project implementation by component and by category of expenditure within three months after the technical assistance team assumes duty; and (ii) a schedule for the provision of redeployed or recruited staff required to run the new schools, three months prior to the opening of these establishments. Following approval of the project on 24 September 1992, the Government fulfilled all the conditions precedent without any particular difficulty and within an acceptable time lapse of 4 months following the signing of the relevant Loan Agreement, on 16 October 1992. The loan became effective on 11 February 1993. Some of the conditions such as (i) the appointment of a PIU National Director, (ii) the curricula vitae
4
of the national technical staff assigned to the PIU, and (iii) the proof of the provision of adequate premises to the PIU and its regional offices, were useful as they enabled speedy start up of the project. Others, because they were poorly formulated, became a mere formality to be fulfilled. These were conditions (vii), (viii) and (x). Condition (ii) was rather unfavourable for the project as it turned out to be a delay factor due to the mediocre performance of MECU. 3.2 Modifications 3.2.1 For the sake of efficiency and in order to take account of the proximity of certain project areas (from one to the other), the Government decided to open seven regional offices instead of nine. Furthermore, in the wake of the devaluation of the CFA franc in December 1993, the entire portfolio of the Bank Group in Côte d’Ivoire was restructured, and the Government, in agreement with the Bank, drew up the Macro-Economic and Social Adjustment Programme, which was financed from the additional foreign exchange generated. The Bank therefore agreed to withdraw from the Education IV project, an amount of UA 10 million for the financing of the PAMES, without affecting the quantitative objectives of the project. However, this modification of the total cost affected the project as some cost overruns, stemming from the underestimation of the rehabilitation works, made it necessary to reduce the number of facilities to be built. Indeed, at the request of the Government and after the Bank’s approval on 7 November 1997, the number of primary, junior secondary and high schools to be rehabilitated was reduced from 375 to 240 and from 50 to 31, respectively, but the number of new primary school classrooms and the number of junior secondary schools to be built were maintained at 1 000 and 10, respectively. In the end, the allocation of UA 10 million to the PAMES was not a sound strategic decision. 3.2.2 In terms of project supervision, given the weaknesses of the Ministry of the Environment, Construction and Urban Planning (MECU), which was responsible for supervising the works for the primary schools built and rehabilitated, the PIU got the Government to use the services of a Technical Consulting Firm (TCF) for the control and supervision of the primary school rehabilitation works. This new and more efficient arrangement led to cost overruns due to the payment of higher supervision fees than the fuel, vehicle maintenance and per diem that the project paid to MECU. These overruns incurred from the TCF supervision were covered through four reallocations made, with the Bank’s approval. 3.2.3 In 2000, the decision was made to use the loan balance for the construction of an additional junior secondary school, increasing the number of new schools from 10 to 11. This last modification, which was made when the project was over 90% implemented, delayed its completion. Works were interrupted, at 35% of implementation, due to the Borrower coming under sanctions for a year and a half until March 2002 and the socio-political upheavals in the country as from 2002 until the closing of the loan in December 2003. The Government will bear the cost of completing this college. Provision has been made in the 2007 budget for the continuation of these works. 3.3 Implementation Schedule 3.3.1 According to the Loan Agreement, the estimated project implementation was to spread over a period of five years, from January 1993 to 31 December 1997. The table below presents a comparison of the estimated and actual implementation schedule of project activities.
5
Table 3.1 Estimated and Actual Implementation Schedule
Activities Estimated Actual Slippage
Observed Presentation to Board September 92 28- Sep. – 02 Oct. 92 Setting Up of PIU January 93 Nov. 92 – Dec. 92 - 1 month Recruitment of Technical Assistance
Finalisation of BD Oct. 92 – Jan. 96 17 August 92 - 29 Oct. 93 - 36 months Invitations to Bid February 93- March
96 17 May 93 – Oct. 95 - 6 months
Examination/Approval of Contracts
April 93-June 96 19 Nov. 93 - 29 May 98 + 24 months
Works Implementation Jul. 93-Sep. 96 Building of 983 classrooms in 93-99 & of 18 classrooms in 00-02
+ 108 months
School Equipment/Furniture Finalisation of BD Oct. 92 – Sep. 93 Data not available Invitations to Bid Feb. 93-Dec. 95 01 Sep. 93 -19 August 98 + 60 months Examination/Approval of Contracts
April 93-March 96
Delivery/Setting Up Sep. 93-Sep. 96 2002 + 72 months Supervision July 93-Sep. 96 1993 – 2002 + 72 months Training March 93-August
95 December 95 + 4 months
Project completion December 97 December 2003 + 72 months 3.3.2 The project started on 30 March 1993, or four months after the loan approval date and one month after it became effective (11 February 1993); it ended on 31 December 2003, i.e. with a slippage of 5 years on the estimated time. Besides the frequent change of Task Managers for the project (five in all), which contributed to prolonging unduly the Bank’s processing of documents, a number of factors also contributed to this delay. First is the suspension of ADF disbursements to the project at different periods (March 1994; 1st to 14 February 2000; 1st to 18 August 2000; 11 November 2000 to 28 March 2002 and February 2003 to date), which consequently affected the processing of project documents. Secondly, MECU was observed to have weak technical capacity in the processing of construction and rehabilitation documents, and the BD it prepared for the rehabilitation works contained incomplete plans while it failed to conduct close supervision. Furthermore, contractors were often confronted with contingencies that had to be covered through contract amendments. In light of these shortcomings, the PIU got the Government and the Bank to authorise the use of TCFs for the supervision of the schools rehabilitation. The extra time involved in the issuing new bid invitations and awarding contracts as well as the problem of the multiplicity of sites also must be taken into consideration. 3.3.3 Another contributing factor for the delay observed in the implementation of the project was the large number of SMEs selected (167 for 397 contracts signed) to carry out the construction works. Contracts for the construction of the 1 000 primary school classrooms were split into small lots countrywide and awarded to SMEs that were mostly new and inexperienced, and which lack the financial resources to pre-finance the construction activities. The PIU and its offices had to assist and train them to achieve the assigned objectives. The dispersal of the hundreds of sites, some which were over 600 km apart, penalized the weakest
6
SMEs and contributed to prolonging the construction times. Consequently, 982 primary school classrooms built were delivered in 1999 instead of the 1996 estimated in the Appraisal Report, i.e. three years behind schedule, and the last 18 were delivered in 2002, i.e. six years late. The making of a large number of small payments slowed down administrative procedures, complicated supervision and created additional work in the management of the project. 3.3.4 The underestimation of the cost of rehabilitation works was another factor as certain rehabilitation works turned out to be complete reconstructions. These works, estimated to cost on average CFAF 1 500 000 and 2 200 000 per primary and secondary school classroom, were implemented at CFAF 4 171 564 and 8 621 818, respectively, i.e. three times more costly. It was necessary to undertake substantial rehabilitation works or even the complete reconstruction of structures in some places. Both the financial resources and estimated times turned out to be inadequate in this case. 3.3.5 Yet another factor was the centralisation of accounts instituted by the Government in February 1998, and the introduction of the SIGFIP in the country. This arrangement further slowed down payment processing procedures, leading to lengthier payment times. This measure adversely affected the work of the SMEs, which were cash-strapped, and the pace of works implementation consequently slowed down. Indeed, the time for the payment of suppliers, which was at most one week prior to the introduction of the SIGFIP, subsequently averaged three months as the system did not permit the making of advance payments, even when funds had been paid into the account. This reduced room to manoeuvre for the PIU had a negative effect on project outputs. 3.3.6 Lastly, it is worth noting that the September 2002 socio-political events also contributed to delaying implementation as this situation halted the provisional and final acceptance of works in the Northern Region. In conclusion, the initial estimated implementation schedule was overly optimistic, considering that the Bank had neither taken part in the identification nor preparation of the project. It failed to adequately assess the technical and financial capacity of the SMEs to undertake several construction works simultaneously, and on sites that were often very far apart. 3.4 Quarterly Activity Reports and Auditing 3.4.1 The PIU regularly provided the quarterly activity reports, with the exception of the times when disbursements were suspended. The last report submitted dates back to 31 June 2004. However, auditing of project accounts, which was to be financed by the national counterpart, was virtually not performed. In fact, only one audit report, instead of the four annual reports stipulated at appraisal, was sent to the Bank. This single audit covered fiscal years 1993 to 1997. A second report for the 1998 to 2003 period has started, but has not been finalised as the Bank has not yet provided the information requested by the PIU on the supporting documents for the disbursements listed in the ledger but not credited to the special account, despite three reminders sent from the PIU. 3.5 Procurement of Goods, Works and Services 3.5.1 The procurement of goods, works and services was performed generally in compliance with the relevant Bank rules and procedures. It is worth noting, however, that the time taken by the Bank to process documents was generally long, and the Government had to re-evaluate bids several times. Furthermore, the architectural and technical designs for the
7
construction and rehabilitation of the primary school classrooms and the supervision of works implementation, which were the responsibility of MECU, on the basis of the Memorandum of Understanding concluded by mutual agreement between this Ministry and MEN, were not done satisfactorily as the designs were incomplete and there was no close supervision, which compelled the PIU to resort to the services of Technical Consulting Firms (TCFs) to take over the supervision of the works concerned. In addition, the BD prepared by MECU for the rehabilitation works did not all contain the building plans, so that the contractors were often confronted with contingencies that had to be covered with contract amendments, which often affected compliance with deadlines. 3.5.2 The use of TCF’s selected on the basis of shortlists made it possible to obtain more complete BDs, avoid amendments to the rehabilitation works contracts and ensure the proper close monitoring that was absolutely essential for this project where it was SMEs that were responsible for carrying out works and supplying goods, mainly furniture. The engineering designs and supervision of the secondary school construction works were undertaken by BNETD (ex-DCGTx), based on the Memorandum of Understanding mentioned in this chapter. This institution also took a lot of time to prepare the BDs. The other consultancy services (technical assistance, audit, training, preparation of school map, etc.) were procured on the basis of shortlists, in conformity with the terms of the Loan Agreement. 3.5.3 The primary and secondary school construction and rehabilitation works, and the procurement of furniture for these facilities were undertaken by the group of SMEs selected by local shopping. The selection of this large number of contractors took time and caused a slippage on the estimated duration. Due to the lack of experience and of financial resources of these firms, the PIU had to assist them technically, resulting in the proper implementation of the contracts signed with them. It assisted the SMEs in the monitoring and execution of works, more specifically the interpretation of building plans, works organisation, supplies, etc. which are key technical aspects that require experience to ensure that they are executed within the set timeframes. 3.5.4 In accordance with the Loan Agreement, the teaching aids, school materials, vehicles and PIU equipment and furniture were procured by local shopping while the IT equipment for the preparation of the school maps was procured by international shopping. Unlike the procurement of furniture for the facilities built, of which the SMEs were the suppliers, these two procurement methods proved appropriate. 3.6 Costs, Sources of Financing and Disbursements 3.6.1 The total project cost estimated in 1992 amounted to UA 59 million of which UA 41.80 million was in foreign exchange, or 70.85% of the total cost, and UA 17.2 million in local currency, or 29.15%. It was agreed that the Bank’s share, of 89.83% of the total project cost, would be used to finance 100% of the foreign exchange cost, and 65.12% of local currency costs. The government’s contribution, amounting to UA 6 million, or 10.17% of the total project cost was to finance 34.88% of the local currency costs. The total project cost at appraisal and the respective shares of the two sources of financing are indicated in the table below.
8
Table 3.6.1
Project Cost by Source of Financing (in UA million) Estimated Amount at Appraisal
Source of Financing Foreign Exchange Local Currency % in LC Total %
ADB 41.800 11.200 65.12 53.000 89.83 Government 0.000 6.000 34.88 6.000 10.17 Total 41.800 17.200 100 59.000 100 % of Total Cost 70.85 29.15 3.6.2 The loan amount disbursed was UA 49 531 268.91, representing 93.46% of the total loan amount, and 83.95% of the total project cost. The undisbursed loan amount of UA 3 468 731, was fully cancelled on 31 March 2005. In terms of the national counterpart funds, a total of UA 5 113 832, representing 85.23% of the amount estimated at appraisal, was disbursed by the closing date of the loan. The first disbursement was made on 8 April 1993, or with a slippage of two months due to the fact that the amount requested by the PIU as the initial revolving fund was higher than the ceiling given by the Bank. Disbursements were subsequently regular until 1998, when 88% of the loan was disbursed. The last one was made on 15 December 2000. Three reimbursement claims for funds committed – No's 220 and 223 of 24/01/2000 and 224 of 12/12/2002 – amounting to a total of UA 1 692 527 were not paid due to the Borrower coming under sanctions. According to the PIU, this amount was committed and is therefore outstanding. The equipment supply and works contracts were affected by these suspensions, in view of the low financial resources of the SMEs hired to execute those contracts. 3.6.3 According to the PIU, seven reimbursement claims (No's 96, 103, 104, 105, 129, 150 and 158) amounting to a total of CFAF 6 186 202 249 appear in the Bank’s ledger, but not in the bank statements of the project account because these amounts were directly credited to the account of the Autonomous Sinking Fund (CAA). This situation must be clarified with a Bank internal audit. IV. PROJECT PERFORMANCE 4.1 Operational Performance 4.1.1 This section presents an analysis of the project’s operational performance by component. For component 1, relating to strengthening primary education, all the activities were implemented. In all, 1 001 new classrooms and related works (2 or 4-block latrines, administrative buildings and/or stores) were built and equipped countrywide, as well as 240 schools rehabilitated and equipped, representing 50 050 additional places. The quality of implementation of construction works was generally satisfactory. Each classroom was equipped with 25 benches, a teacher’s desk, a teacher’s chair, a cupboard and a blackboard while each headmaster/mistress’ office was furnished with an executive desk, an executive chair, two visitors’ chairs and one cupboard. Twenty-five vehicles including 5 pick-ups, five 4-wheel-drives and the others saloon cars were procured and, in keeping with the outcome of the negotiations, 10 vehicles were given to MECU for the supervision of the works. Office equipment was supplied to the regional offices of the PIU, which were located in the 7 DREN of the project. The schools were provided with learning and instructional materials. All these
9
activities contributed to a marked improvement in the learning conditions of thousands of pupils and that of teachers’ work since the intake capacity of primary schools in the project areas increased while the pupil/class and pupil/teacher ratios (since Government had assigned teachers to them) reduced and the internal efficiency improved. 4.1.2 Under Component II, relating to strengthening secondary education, 10 junior secondary schools were built and equipped; these works were completed in 1995. The equipment was 98% procured and furniture 90% while the remaining 10% was financed by the COGES, after the closing of the loan and at the reopening of schools. With the agreement of the Bank, the Government decided to build an 11th junior secondary school at Kouassidatékro. Unfortunately, the construction works for this school, which were 35% implemented, following the suspension of disbursements, still have to be completed. The rehabilitation works for 31 junior secondary schools were fully implemented. The structures put up were of good quality, but they are being overexploited to the point where in some schools, assembly halls, IT rooms and scientific laboratories were converted into administrative offices (N’Douci) and/or regular classrooms. Emphasis should therefore be laid on their continuous maintenance. The high and junior secondary schools built were provided with the necessary furniture and equipped with instructional material, with the exception of the Kouassidatékro junior secondary school for which the allocation of funds is still pending. The sports, office and medical equipment of this college have already been procured and will be delivered upon completion of the construction works. Still pending under this component are the completion of construction works and the procurement of its equipment, the supply of scientific materials of 4 rehabilitated high schools, and the acceptance of the buildings put up by the project and located in the conflict areas. This component therefore contributed to increased schooling supply in secondary education by enabling each school to admit 800 new students each year and bringing hundreds of students of junior secondary schools closer to their families. 4.1.3 Component III, relating to increased enrolment in rural areas, was fully implemented between 1995 and 1997. In all, 935 000 textbook were procured and distributed to 132 812 girls in the target regions. The training component was also fully executed. Fifty-six educational advisers, 28 inspectors and 5 DREN were thus trained in the management of the textbook lending programme and in IEC, 200 000 posters were distributed, radio and television broadcasts and newspaper articles were disseminated to the public and awareness campaigns were conducted. Five pick-ups were procured for the distribution of textbooks in the regions while a study was conducted on the trend of girls’ enrolment in 20 of the 28 IEPs covered under this component, and it emerged from the study that between 1994-1995 and 1995-1996, the GER of girls in the targeted regions increased by 24%. The component has therefore contributed to improved school attendance of girls and their retention, in keeping with the expected results. 4.1.4 Component IV, relating to the introduction of environmental studies, was also fully executed since 1998. School curricula were revised with the introduction of basic environmental education, which was subsequently rolled out by the MEN. Middle and upper primary (CE and CM) modules were prepared and 55 000 environmental studies textbooks, comprising 27 000 for CE classes and 28 000 for CM classes, were distributed in the 10 DREN. A booklet entitled "The Environmentalist" was produced and distributed to teachers as an instructional guide for the new environmental studies textbook; 3 films were produced to strengthen these activities, and 6 102 environmental cooperatives and clubs were established. Furthermore, 4 training seminars were organised for 100 central, regional and
10
departmental directors; 150 MEN officials; and 100 educational advisers in environmental sciences and the formulation of environmental studies curricula. 824 primary and secondary teachers and 194 200 pupils and students, as well as parents and vendors selling near primary schools were sensitised on environmental issues. 250 IEP and DREN extra-curricula advisers and secondary school teachers were trained in the formulation of the specific objectives and instructional content of the primary school environmental studies curriculum. Forty journalists were also trained in covering environmental issues in the media. Workshops were organised for 240 teachers to provide in-depth training in basic environmental education, using the environmental studies textbook. Lastly, two MEN officials participated in a 10-week “Environmental Education” course at the Fontenay/Saint-Cloud Teacher Training in France. 4.1.5 The school cooperatives and clubs became popular with the organisation of the environmental contests. These clubs generated very keen interest, which was reflected in the presence of parents within the school cooperatives. As a result of this initiative, school compounds were kept clean and trees and flowers were planted in some schools to beautify their surroundings. Given its success, it is regrettable that this component remained at the “pilot project” phase since the textbooks produced have not been introduced into the official school curriculum up to now. The constant awareness generated among parents to keep their surroundings and that of the schools clean is an important gain of this component. However, the problem created by the sewage lagoon at the Mamie Houphouët Faitai High School in Bingerville, which constitutes the only deplorable environmental condition, is worth mentioning. 4.1.6 Component V, relating to the School Map support, was fully implemented in 1998. The integrated statistical and geographical system was operationalised that year. The interactive data is currently available as the IT equipment and software to manage them have been purchased, and the training of the MEN staff as well as that of other secondary officials from the DREN and IEPs, heads of schools and DIPES regional agents has been conducted. The Regional Directors of National Education (DREN) have been equipped with micro-computers and printers; DIPES (ex-DPES) received and installed a network of micro-computers, a server, a printer, a mapping device and geographical information software. Currently, the statistical data of the country’s schools and school population are processed at the central database, at the DIPES Sub-Directorate of Statistics and at the Regional Directorates, depending on each level. BNETD used the GRAPHBASE software to prepare maps with administrative boundaries, roads, localities and location of primary schools. All these outcomes have contributed significantly to the planning and management of the educational system. However, it should be pointed out that BNETD has delayed in delivering the base maps ordered by DIPES. In this regard, 11 of the base maps paid for have not been delivered. 4.1.7 As part of the implementation of Component VI, relating to the implementation of education projects, the Project Implementation Unit (PIU) and its 7 regional offices were set up in 1993, and subsequently with IT and electronic equipment such as photocopiers, calculators, pocket calculators, office lamps, telephones, air conditioners, and others, as well as three 4-wheel-drive vehicles and a liaison vehicle, as planned under the project. All the activities under this component have been implemented. The project covered the cost of the
11
salaries and expenses of the local staff recruited, office supplies and consumables, missions to the ADB and running the three vehicles. However, the PIU conducted only one audit during the period of 1993 to 1997. The second audit, covering 1998 to 2000, has not been completed. It needs to be carried out to enable assessment of the quality of financial management of the project, even if it is ex-post. 4.2 Institutional Performance 4.2.1 In accordance with the appraisal report, the PIU, comprising the National Director, an architect specialised in school facilities, two architects for the engineering designs, a procurement specialist, a communication specialist in charge of sensitization on schooling and a planner in charge of programming and monitoring the school map, and the PIU regional offices, charged with project implementation, were set up under the MEN, where they were assigned offices. The PIU was further strengthened with the assignment of four building technicians in charge of works supervision in the Abidjan district, a quantity surveyor, an accountant and support staff. Lastly, two building technicians were assigned to each of the seven regional offices set up to oversee the works. They were subsequently equipped with the necessary material to perform their duties. 4.2.2 The PIU and its offices, staffed with a total 41 persons, was divided into three specialised technical units – Contracts, Finance and Accounts Management and Maintenance and Vehicles. The professional qualification of the staff recruited and their organisation into technical units helped to cover the skills needs of the project and ensure proper implementation with a minimum of human resources. It was, nonetheless, necessary to upgrade the skills of the staff, which consequently enhanced the quality of services provided by the team, which remains unchanged to date. Its efficiency enabled the implementation of over 90% of the project’s activities during the first five years. Over time, the Unit, which has been integrated into the MEN institutional set-up and which has gained experience, is now serving as an executing agency for the projects of several donors including the World Bank. KFW, IDB, OPEC Fund for International Development and Japanese Cooperation. 4.2.3 It is worth noting that the PIU accomplished its function as an interface between the different ministries involved in the project, in a delicate institutional environment where MEN was the project owner, MECU the project manager for the primary schools and DGCTx (now BNETD) the project manager for the secondary schools. The Ministry of Finance, through its Public Investments Directorate (DIP) and the Autonomous Sinking Fund (CAA – now the National Investment Bank) ensured the execution of government financial commitments under the project, in conformity with their functions. 4.2.4 Despite the prompt and smooth effectiveness, implementation of the project, scheduled for five years, finally lasted 10 years. As explained in paragraph 3.3.2, the new financial and budgetary management system was not flexible. Otherwise, project management control could have been carried out by a budget controller and an accountant within the PIU whose Director would have kept his function as the authorising officer as is the case in national pubic establishments. This would have made the PIU exercise autonomy over its budget, but that was not the case. 4.2.5 All training and retraining of the PIU and MEN staff and seminars were conducted. The capacity of staff of the Executing Agency and the two MEN Directorates involved in the implementation of the project (DIPES and DELC) has been strengthened, as well as that of the
12
Regional Directors of National Education, Primary Education Inspectors and Educational Advisers. It must be pointed out, however, that virtually all these people who benefitted from this training have left their Directorates on retirement or for jobs in other structures. Measures to ensure the retention of personnel trained, such as a bond to remain at post for a minimum required period, must be defined to enable skills transfer within the relevant structures. 4.3 Performance of Consultants 4.3.1 The engineering designs and supervision of construction and/or rehabilitation works for the junior secondary schools were properly executed by BNETD and the BDs were complete. Each site had one or more foremen, for on-site control of the works, under the supervision of an engineer, who was assisted by a secretary. The latter’s performance is considered satisfactory. However, that of MECU is deemed unsatisfactory as it prepared incomplete BDs and failed to ensure appropriate on-site supervision, which led to several amendments to the contracts of the SMEs and caused slippages on the implementation schedule. Consequently, the PIU had to ask the Government to allow Technical Consulting Firms (TCFs) to participate in the control and supervision of the secondary schools rehabilitation works. 4.3.2 The computerised financial and accounting management system of the project designed and installed by the ORT consultant showed its limitations with respect to the requirements of the SYSCOA accounting regulations. Although it was a good budget monitoring instrument, this tool had certain weaknesses in terms of fixed assets, balances, etc. More efficient software was available on the market, leading the PIU to change its software after just two years. The cost/effectiveness ratio of this technical assistance was very high, but the consultant’s performance is considered satisfactory. 4.4 Performance of Contractors 4.4.1 The SMEs involved in the execution of the construction and rehabilitation works made laudable efforts. Most of them were small and did not have any solid financial base. In any case, they did not have the experience needed to manage contracts of that size. The performance is considered satisfactory. 4.5 Performance of Suppliers 4.5 The suppliers, who were mostly experienced, efficiently ensured the timely delivery of good quality materials. However, the school furniture suppliers (SMEs) sometimes had to re-deliver items that were defective. In all, there were 81 supply contracts with 37 different companies. The 25 vehicles earmarked for the PIU were all properly procured and allocated to the sections they were intended. They are all out of service after 10 years of use. Their performance is considered fair overall. V. SOCIAL AND ENVIRONMENTAL IMPACT 5.1 Social Impact 5.1.1 In spite of the difficulties surrounding the implementation of the project, it had positive social impacts. The facilities built and rehabilitated under Components I and II contributed highly to improving access to education by increasing the intake capacity of primary and secondary education, hence the improved GER observed, particularly that of
13
girls in deprived regions. With respect to primary education, from 1992 to 1993 and 1998 to 1999, the national GER inched up from 73 to 73.2% (65.1% for girls), reaching 79.5% in 2001-2002 (67.3% for girls). During the same period, enrolment rose from 1 447 785 to 1 910 820, representing an increase of 25%, and from 1 943 101 to 2 113 836, between 2000 and 2002, representing an increase of 8%. In other words, an increase of 32% was observed between 1992 and 2002. The facilities put up are being over-utilised, indicating an increasingly strong demand for education (which is positive) but which makes the maintenance and repair of these facilities and equipment even more imperative. 5.1.2 This very important social impact is instrumental in the development of human resources that is capable of contributing more effectively to wealth creation in the country. It is worth noting that the project has not only helped to improve access to education, but also to the quality of learning and the management of the whole educational system by equipping the students and teachers with learning and instructional materials, and providing different types of training for the managers of the system. The improved pupil performance, reflected in the reduction of the overall repetition rate, which declined from 29% in 1991 to 24% in 2005, is one of the benefits of this positive impact. It is regrettable, however, that the current socio-political situation made it impossible to continue supplying schools in the North with instructional materials and laboratory products, which will definitely lead to reduced performance, among others. 5.1.3 The breakout of the war in September 2002 has had the effect of disorganising the education system up to now, with the massive displacement of the population from the CNO zones to areas further south and migration to neighbouring countries. This movement has led to a doubling of the pupil/teacher ratio in the southern regions. Consequently, in the Abidjan District, class sizes now average 75 pupils whereas previously they were estimated at 50. Several schools have had to adopt a double-shift system. This is the case of the EPP-BAD Nouveau Quartier (ADB-Public Primary School), in Yopougon, which currently has 600 pupils instead of the 200 initially planned. Another consequence is the drastic drop in the national GER; after reaching 79.5% (67.3 for girls) in 2001-2002, this rate fell to 59.7% (51.9% for girls) in 2002-2003, whereas it bordered 100% (98.6%) for boys in the South during the same period. The downward trend continued up to 2004-2005, when the GER stood at about 59.4%. In other words, the regional disparities combined with the gender disparities, are reflected in this socio-political situation, which constitutes a setback. 5.1.4 Another effect of this socio-political crisis was the destruction of public property, in general, of which the project was a victim. This situation threatens the durability of the facilities built and/or rehabilitated as part of the project, and hampers the sustainability of the technical gains. Thus, out of the 25 vehicles procured and distributed to the MEN and its DREN, five were carjacked, one burnt, 16 in “bad condition” and three damaged in accidents. Not a single one is working now. This situation constitutes a policy-related challenge as mere maintenance measures would not have been enough in this case. However, recent moves towards national reconciliation give hope of sustaining the project gains. 5.1.5 With respect to secondary education, enrolment rose from 396 606 in 1991 to 565 850 in 1998-1999, resulting in a GER of 23.2% (15.6% for girls). From 1999-2000 to 2002, this enrolment figure went up from 599 075 to 682 461, representing an increase of 12.3%. The GER for this level of education stood at about 20.17% in 2003-2004 and 2004-2005 (16% for girls). The presence of community schools decreased migration of students to and from schools and the long distances covered daily by students. Currently, they are confronted
14
with increasingly high enrolment numbers that have compelled them to operate a double shift system and rearrange administrative offices to accommodate double the number of staff. The facilities are being subjected to the effects of this overexploitation, resulting in increased repair and maintenance needs. For example, the ADB Junior Secondary School at N’Douci, has 2 500 students instead of the 800 initially planned (maximum capacity of 960 students); the ADB Junior Secondary School in Yamoussoukro operates a double shift system while at the Mamie Adjoua High School in Yamoussoukro, assembly halls, IT rooms and physical science and laboratories were converted into regular classrooms. 5.1.6 In addition to the outputs that have resulted in increased access, the project rehabilitated 240 primary schools and 31 high and junior secondary schools, equipped 6 DREN and trained 88 Departmental Inspectors of Education. Furthermore, for primary school pupils in the project areas, the average distance to cover to get to school has shortened considerably, to between 0 and 3 km instead of 7 km previously. The presence of community secondary schools has helped to reduce the migration of students and the daily distances covered to school. The building of scientific and agricultural science laboratories in the 10 new colleges has contributed to raising access to scientific education. The computer equipment provided to the Directorate of Planning and the 10 DREN has contributed to more effective management of available human resources countrywide. Unfortunately, it must be admitted that the conflict situation constitutes a threat to sustaining the gains of the project, not to mention the fact that it makes it difficult to properly cover the recurrent costs. 5.2 Environmental Impact 5.2.1 Classified under Environmental Category 3, it was not necessary to conduct an environmental impact assessment study prior to siting of the project. The construction works, which were executed according to modern standards, did not have any negative impact on the environment. Execution of the related infrastructural works was done without any significant impact on the environment, since no damaging effects were observed in the surroundings or reported after the end of the works. Besides, the construction of latrines in the schools contributed to improving the environment around these schools as they have inculcated hygienic and modern lifestyles in the pupils and students of the schools. Trees were planted in some schools, thus contributing to beautifying the environment. Generally, the primary school compounds are clean. However, the sewage lagoon of the Houphouët Mamie Faitai High School in Bingerville constitutes a risk factor for the health of the school population since, due to lack of maintenance, this waste water treatment plant, which is not fenced, has turned into a foul-smelling breeding ground for mosquitoes. It would be better to eliminate this sewage lagoon and equip the school with a conventional system of septic tanks, in order to prevent malaria epidemics. 5.3 Impact on Women 5.3.1 The Appraisal Report did not provide any gender-specific indicators. It is nonetheless possible, based on the period indicators and the results of the study on girls’ enrolment, conducted by MEN, to assess the project’s impact on girls, considering that more retrospection is needed for proper assessment of such an impact. Thus, it appears that the project, through the raising of public awareness to the need to enrol girls, the shortening of the distance between the homes of students and their schools, the systematic construction of two blocks of latrines in the schools and the free lending of 934 956 school textbooks to girls in the five DREN contributed to improving the enrolment and retention of girls in school.
15
Countrywide, the GER of girls rose from 43.7% in 1991 to 65.3% in 2000. Through the lending of textbooks, the number of enrolled girls in the target regions went up from 91 925 to 132 812 between 1992 and 1997, representing an increase of 31% in five years. The socio-political crisis in 2002, unfortunately, contributed to reversing this positive trend and even threatens the sustainability of the gains. 5.3.2 If the conditions to counteract this reversal of the situation were to be created, the project would become a strategic instrument for the advancement of women as the large number of girls educated would contribute to productivity for wealth creation and, therefore, the country’s socio-economic development. Additionally, raising the girls’ awareness of environmental, hygiene and health issues will, over time, help to convey more effectively new values geared towards environmental protection, and contribute to reducing maternal and child mortality. 5.4 Impact on Poverty 5.4.1 The project has had a positive impact on poverty reduction. The increased GER, particularly that of girls in the deprived areas, coupled with the improved internal efficiency of the educational system, constitutes a factor for socio-economic development since the future generations are being educated and empowered to become self-reliant in a global context where productivity is the sole channel for human development. On the other hand, although the participation in the implementation of the project of about 100 SMEs, employing over 5 000 people, contributed to the delay observed in the implementation schedule, this unique aspect of the project impacted positively on the economic health of these firms and, therefore, on the revitalisation of the private sector. With the experience acquired and the resources generated from the implementation of the project, some of these SMEs positioned themselves more effectively on the job market, employing increasingly larger numbers of workers and thereby contributing to poverty reduction. VI. SUSTAINABILITY 6.1 The high population growth (3.5% over the decade) puts a burden on the educational system and tends to diffuse the effects of efforts to improve accessibility, by increasing education costs and lessening the intake capacity of the system. In the current situation, the system admits 45 000 new pupils each year to primary school, where the pupil/class ratio decreased from 66 in 1991 to 42.6 in 2000. Considering the GER of 60% over the decade, there is a risk that the facilities, furniture and equipment procured deteriorate rapidly due to the overexploitation of the facilities. The case of secondary schools, where space reserved for administrative purposes is converted into classrooms to meet an ever increasing demand for education that also requires additional administrative staff, is an excellent example of the population pressure on the educational system. Yet, the breakdown of education expenditure (74% for current expenditure, 14% for operating expenses and 6.4% for education expenses) does not allow adequate investment in sustainable quality. Additional efforts are needed for the sustainability of recurrent expenditure and to tangibly increase education and operating expenditure so as to enhance the quality of education services. 6.2 Added to the population pressure are the effects of the socio-political conflict. Primary and secondary schools in the overpopulated South operate a double shift system by taking in more than twice the number of pupils and students than their actual intake capacity,
16
which contributes to degrading the quality of learning. Some school facilities in the CNO areas of the country were destroyed and looted, including property and some of the vehicles procured under the project for MEN and the DREN, which were carjacked and diverted. At Odienné, for instance, school equipment including furniture, doors, roofing sheets and windows were stolen. In Bouake, where there was fighting, the facilities of the Girls High School were also destroyed. A reconstruction project must be planned immediately the conflict ends to enable the restoration and re-operationalising of all the facilities destroyed. 6.3 Although the facilities put up are of good quality, it would be advisable that maintenance and repairs, currently the responsibility of the parent-teacher associations, are carried out regularly so as to ensure the sustainability of the school facilities, furniture and equipment. Maintenance activities are no longer financed by Government, following the introduction of the COGES, but these committees lack the financial resources and experience to properly perform this task. Thus, it would be strategic to conduct a public education campaign on civic responsibility that promotes citizenship values as well as accountability, ownership and preservation, in order to ensure the durability of public and private property. The continuous training of the beneficiaries in maintenance of the facilities, furniture and equipment procured, coupled with the publication and widespread dissemination of a preventive maintenance and repair manual are still necessary to ensure sustainability. VII. PERFORMANCE OF THE BANK AND THE BORROWER 7.1 Performance of the Bank 7.1.1 The project, appraised by the Bank, was in line with national priorities and formed an integral part of the Public Investment Programme, particularly the SAP-HR and the HRDP. The Bank was not involved in its identification and did not carry out any project preparation. During appraisal, it used the identification documents provided by the Government. This partly accounts for the underestimation of the rehabilitation works, which went beyond simple renovation and involved upgrading the buildings to meet required standards. In some case, the works were very costly. The project designers proposed seven specific objectives including one which was non-operational and even ideological, as well as three additions that were one and the same. In all, seven supervision and portfolio restructuring missions were fielded by the Bank during the 10 years of project implementation, i.e. an average of 1.42, which falls below the recommended 1.5 supervision missions per year. It must be pointed out however that supervision was irregular because of the suspended disbursements. In addition, since the Bank’s relocation to Tunisia, no supervision has been conducted and the processing of documents has been slow. The frequent changing of the project’s Task Managers (5 in all) has added to this situation and the protracted delays in the processing of documents at the Bank. 7.1.2 Nonetheless, the missions fielded by the Bank provided the opportunity to discuss with the Government certain technical issues (engineering studies and supervision, construction works, preparation of bidding documents, progress reports, sites and national counterpart funds), which helped to improve the implementation of the project. However, the Bank should not have approved the building of the 11th secondary school when the project was over 90% implemented, or the transfer of part of the project resources to PAMES, which resulted in a reduction of the project’s quantitative objectives. The Bank’s performance is considered fair.
17
7.2 Performance of the Borrower 7.2.1 The timeframe of four months taken by the Government, from the date of signing of the Loan Agreement, to meet the conditions precedent to loan effectiveness is reasonable. However, implementation of the project lasted 10 years instead of the five envisaged in the same Agreement. The lengthy delays in making payments to contractors, suspended disbursements for non-payment of arrears and the decision to build a new secondary school after over 90% of project implementation contributed to prolonging its duration. Lastly, auditing of the project accounts, financed by the counterpart, only covered the period of 1993 to 1997. Financial control of the project was therefore not in conformity with the terms of the Loan Agreement. The performance of the Borrower is deemed unsatisfactory. VIII OVERALL PERFORMANCE AND RATING 8.1 The objectives and the initial activities of the project were fully implemented. The overall timetable was not adhered to, in contrast with that of the cost schedule. The loan conditions were met in full four months after it became effective, but the fact that there was only one auditing of project accounts (covering several years) throughout its implementation, is an important deficiency. The project achieved the objectives identified from the start, by contributing to the improvement of access, the quality of management/planning of the educational system and more importantly at the primary and junior secondary levels of education. Its operational performance with regards to objectives identified from the start is satisfactory at 2.84. Regarding the impact on development, the project obtained a satisfactory 2.54. IX. CONCLUSION, LESSONS AND RECOMMENDATIONS 9.1 Conclusion 9.1.1 The formulation of the project responded effectively to the needs identified from the start. Its implementation allowed pertinent problems confronting the educational system to be resolved, namely: lack of classrooms and specialised rooms, dilapidated state of existing facilities and lack of learning and teaching materials as well as school furniture. This situation resulted in the low level of accessibility to educational services in the project areas, if not in the whole of the country. The achieved objectives of the project have contributed to the improvement of accessibility to primary and first cycle secondary education and to the quality of education in the targeted areas. 9.1.2 Indeed, apart from the completion of certain works at the supplementary Kouassidatékro junior secondary school, the activities and outcomes envisaged under the project were completed, with however a five-year delay stemming from the suspension of disbursements for non-payment of arrears by the Borrower, and to the change in its management accounting system, which led to the administrative bottlenecks experienced by the project. However, it must be emphasised that during the first five years of implementation of the project (from 1993 to 1998), the PIU carried out more than 90% of all project activities and procurement. Overall, it achieved the goals initially assigned by putting into place the planned facilities. The number of pupils rose from 1 735 814 in 1996-1997 to 2 113 836 in 2001-2002.
18
That of girls in deprived areas rose by 24% within two years of project implementation. Unfortunately, with the 2002 socio-political crisis, the 75% national GER achieved fell to 54.4% in 2004-2005. The improvement with regards to the quality of education was made through the use of specially equipped rooms in a more conducive environment for learning, as well as that of the learning and teaching materials procured. 9.1.3 Preventive maintenance and the maintenance of facilities, assigned to the Management Committees (COGES), which have very little financial resources and lack expertise, has not been efficiently implemented given the conflict situation and the resultant deterioration of school facilities. Thus, the sustainability of facilities could eventually be adversely affected if no measure is taken to maintain the financial and technical strength of these committees. The total reallocation of registration fees to communities, instead of only 20%, will help to rectify this situation. Finally, it is urgently necessary to eliminate the sewage lagoon at the Houphouet Mamie Faitai High School in Bingerville in order to avoid malaria epidemics. 9.2 Lessons 9.2.1 Several lessons were learnt from the implementation of the project, and from the synthesis and analysis of different documents obtained on site and at the Bank. The first relates to the importance of the Bank’s participation in the identification and preparation of the project, before its appraisal. Indeed, the under-estimation of rehabilitation works was a contributing factor in the cost overruns and delays in project implementation. In addition, the choice of SMEs for the construction and rehabilitation works posed an obvious risk as their large number (there were almost 400 contracts to manage and monitor), inexperience and weak financial base of some, contributed to slowing down the implementation of the project. 9.2.2 The second lesson relates to the setting up of SIGFIP during the implementation of the project. Unfamiliar to the managers of the project, it contributed to prolonging the delays in payments to contractors and suppliers, and affected performance in project implementation. The third lesson learnt was from the decision to undertake supplementary activities during project implementation, which gave rise to the same consequences as the first. A further lesson learnt relates to the need to ensure that project accounts are audited on a regular basis for sound and effective management. In this instance, only one audit was conducted for the entire 10-year duration of the project, which did not ensure control and monitoring of the financial management of the project. 9.2.3 The last lesson relates to measures to be taken in order to ensure the sustainability of facilities, in a context characterised by conflict, where maintenance of the facilities and equipment acquired poses a major challenge. To this end, good citizenship education, combined with training of the beneficiaries in the maintenance and repair of public property, in addition to providing commensurate financial resources for this purpose should contribute to ensuring that public property, in general, is maintained and that more value is attached to its sustainability. Urgent actions to be undertaken in order to ensure sustainability of the gains include specifically, (i) the elimination of the sewage lagoon at the Houphouet Mamie Faitai High School in Bingerville, which constitutes a health risk for the school population, and equipping the school with a conventional system of septic tanks in order to prevent malaria epidemics (ii) the technical and financial strengthening of the Management Committees (COGES) and (iii) the education of the population on good citizenship.
19
9.3 Recommendations 9.3.1 In view of the foregoing, the following recommendations were made:
To the Bank:
(i) ensure adherence to the project cycle so as to ensure the design of realistic
projects for which the conditions of implementation contribute to optimum efficiency;
(ii) ensure the consolidation of contracts in order to facilitate the coordination
of project implementation, and cut back on the implementation schedule slippages;
(iii) ensure more effective project monitoring and ask the government to
finalise the auditing of project accounts for the following fiscal years: 1999, 2000, 2001, 2002, and 2003;
(iv) avoid approving supplementary activities when projects are drawing to a
close, in order not to create financing problems that lead to the non-completion of the activities started;
(v) make the putting in place (by the government) of a permanent mechanism
for the maintenance and repair of facilities and equipment, a condition precedent to loan effectiveness; this would help create favourable conditions for sustainability.
B. To the Government:
(i) take the necessary measures to finalise the auditing of project accounts for
fiscal years 1999, 2000, 2001, 2002,and 2003;
(ii) put in place a permanent mechanism for the maintenance and repair of facilities and equipment purchased, through the technical and financial strengthening of the COGES, and undertake public education on good citizenship, in order to ensure the sustainability of pubic investments;
(iii) plan the refurbishment of facilities damaged in the war in order to make
them operational for the reopening of the 2008 academic year;
(iv) take the necessary measures for the completion in 2007 of the Kouassidatékro College from its own resources, in order to exploit the investments already made on the site;
(v) systematically mainstream the introduction of environmental studies in all
primary and secondary school curricula, in order to ensure the sustainability of project gains in this area;
20
(vi) take the necessary measures to eliminate the sewage lagoon of the
Houphouët Mamie Faitai High School in Bingerville, which poses a health hazard for the school population, and to equip this school with a conventional system of septic tanks, so as to prevent malaria outbreaks.
ANNEX 1
REPUBLIC OF COTE D’IVOIRE: EDUCATION IV PROJECT
Country Map showing Project Sites
c) Summary of Education IV Project: New Primary Schools, Rehabilitated Primary Schools and New and Rehabilitated Secondary Schools.
ANNEX 2 Page 1 of 2
REPUBLIC OF COTE D’IVOIRE: EDUCATION IV PROJECT
Sources of Information 1. Project Appraisal Report 2. Government’s Project Completion Report 3. Quarterly Project Activity Reports 4. Memoranda and Project Supervision Mission Reports 5. School Statistics of the Ministry of Education 6. Discussions with Project Executing Entities and Beneficiaries. 7. Synthesis Report on Increased Enrolment of Girls 8. List of Persons Met:
Surnames and First Names
Title Institution or Structure Contact / email
MINISTRY OF NATIONAL EDUCATION NDA Jules Director DELC 22 22 50 55 N'CHO Koutouan Jules Division Chief DELC S/DEMP 22 22 50 55
07 36 42 30 GBO Yao Bernard Director DIPES 20 21 99 06
CONTINGENCIES, INSTITUTIONAL SUPPORT 13 379 038 12 954 195 12 512 972 441 223 181 254 - 181 254 - OVERALL TOTAL 53 000 000 53 000 000 48 591 974 4 408 026 6 000 018 5 113 832 886 186 85 N.B. According to the Bank’s ledgers, the gap between the total amount of UA 49 531 269 actually disbursed and the total amount of UA 48 591 974 actually charged to categories of expenditure
(UA 939 295, i.e. about 4.15% of total request for revolving fund replenishment) is due to the fact that the last revolving fund was not accounted for.
1. Adherence to general time schedule 1 There was a slippage of 5 years, or 60 months, on the schedule. Nonetheless, the initial objectives were achieved upon completion.
2. Adherence to Cost Schedule 1 The rehabilitation costs were largely exceeded
3. Compliance with Covenants 3 The loan conditions were fully met. The Borrower fulfilled the conditions precedent to loan effectiveness four months after signature of the loan
4. Adequacy of Monitoring & Evaluation and Reporting 1
Project implementation was beset with deficiencies in project management, engineering designs, and site control and supervision. Only one audit was conducted throughout project implementation..
5. Satisfactory Operations 3
The project achieved its objectives defined from the start and contributed to increasing the GER and the quality of education. The only penalizing factor for the project was the decision taken in 2000 to construct the 11th secondary school
TOTAL Overall Assessment of Implementation Performance 1.8 Performance is considered unsatisfactory
Performance of the Bank
Assessment Criteria Score Remarks
1. At Identification 1 The Bank did not take part in project identification 2. At Project Preparation The Bank did not participate in project preparation 3. At Appraisal 3 The project was appraised in June 1992 by an ADB mission.
The objectives determined were consistent with the SAP-HR and the HRDP. The project logical framework matrix was not yet a requirement at the time of its appraisal. The activities selected were relevant, but there were too many objectives and conditions precedent; the rehabilitation costs were underestimated, and the selection of MECU and SMEs was not judicious.
4. At Supervision 2.5 Seven supervision missions visited the project over the 10 years of implementation, i.e. an average of 1.4, slightly less than the 1.5 required. Supervision was irregular mainly as a result of the disbursement suspensions experienced by the country. The supervision reports were in conformity with requirements, and the composition and duration of missions were appropriate.
Overall Assessment of the Bank’s Performance 2.16 The Bank’s performance is just fair
ANNEX 6 Page 1 of 2
REPUBLIC OF COTE D’IVOIRE: EDUCATION IV PROJECT
Impact on Development
Assessment Criteria Score Remarks Relevance and Achievement of Objectives
(i) Macro-economic policy N/A
(ii) Sector Policy 3 The project objectives were consistent with the Human Resource Development Programme and with the Bank’s policy on education and training.
(iii) Physical Infrastructure (including production) 4 The facilities planned at appraisal were generally completed
(iv) Financial Policy 2 The counterpart funds were regularly paid. The introduction of the SIGIF slowed down the pace of payments to contractors
(v) Poverty Reduction//Social/Gender 4
The project contributed to reducing poverty through the increased GER in primary schools, particularly that of girls in the deprived areas targeted by the project
(vi) Environment 3 The school compounds are clean and beautified with the planting of trees of flowers
(vii) Private Sector Development 4 Over 138 SMEs for the works and supply of goods were involved in the implementation of the project, with 325 contracts.
(viii) Other N/A
Sub-Total 3.33 2. Institutional Development (i) Institutional Framework including
Restructuring 3 The PIU acquired skills in project implementation
(ii) Financial and Management Information System including Audit System 1
The accounting and financial management system put in place showed its limitations and did not meet the requirements of the SYSCOA accounting regulations. The 1998 to 2003 audits are still pending and need to be clarified.
(iii) Technology Transfer
3
The IT equipment procured made it possible to network the MEN computers. The statistical information system is performing efficiently. The school map has been computerised and integrated into the statistical and geographical data. The SMEs have strengthened their experience in site and contract management.
(iv) Staffing by qualified persons (including turnover) training and counterpart staff 3
The permanent PIU staff recruited is still at post. The teachers upgraded their skills through the training sessions and seminars. However, many have since gone on retirement without adequate provision for the transfer of their skills.
Sub-total 2.5 3. Sustainability Continued Borrower Commitment
2
Commitment quite uncertain. Although the Borrower is concerned with sustainability of the facilities, it issued orders assigning the COGES the technical and financial responsibility for the preventive maintenance of the facilities whereas the latter are not adequately resourced to assume this function.
3 This policy was strengthened through the training programmes and seminars while environmental basics were introduced into school textbooks.
Institutional Framework 3
The MEN structures are being reinforced. The civil society is beginning to participate actively, and orders establishing the COGES have been issued.
Technical Viability and Staffing
2
The viability of the facilities and equipment is undermined by the lack of a maintenance programme and responsible structures (very weak role of the DAAF/SDBS) as well as the population pressure
Financial Viability and Cost Recovery Mechanisms
2
Despite the issuing of the order establishing a cost-sharing arrangement between the Government and the population, the repairs and maintenance funds are inadequate. Families and local communities must be encouraged to participate more effectively.
Economic Viability N/A Operation and Maintenance Continuity (availability of funds to cover recurrent expenditure, foreign exchange costs, spare parts, workshops, etc.)
2
The recurrent expenditure is no longer adequately financed by the Government despite the setting up of the Education Development Fund into which part of registration fees are paid.
Sub-Total 2.33 4. Economic Rate of Return N/A Total 2.7 Overall Assessment of Outcomes 2.7 The project’s impact on development is positive
ANNEX 7 Page 1 of 2
REPUBLIC OF COTE D’IVOIRE: EDUCATION IV PROJECT
Matrix of Recommendations and Follow-Up Actions
Main Findings and Conclusions Recommendations Follow-Up Actions Responsibilities Formulation and Project Rationale The Bank did not participate in either the project identification or preparation.
Ensure adherence to the project cycle to enable a better design of operations
In the framework of the preparation of other projects, it would be judicious for the Bank participate in the identification and the preparation of projects
Bank
Project Implementation • The Bank accepted, at the request of
the Borrower, the construction of an 11th college at Kouassidatekro although 90% of the project had been implemented. At the closing of the project, this college is still unfinished following the suspensions for non-payment of arrears.
Take the necessary measures to ensure the completion, in 2007, of the Koussidatékro Secondary School from its own resources and plan the repair of facilities damaged by the war in order to make them operational for the reopening of the 2008 academic year.
The Bank must ensure that the government completes the construction of the 11th college.
Bank/Government
Compliance with Loan Conditions and Covenants Only one project audit was conducted, the second one started was never completed, and the auditor for the 2001-2003 period remains to be recruited
Complete the outstanding project audit reports for fiscal years 1999-2000 and2001-2003.
Request the Government to conduct the outstanding audits.
Government/Bank
ANNEX 7 Page 2 of 2
Main Findings and Conclusions Recommendations Follow-Up Actions Responsibilities Performance Evaluation & Project Outcomes The targeted goals are more than 90% achieved. The construction works are completed. All activities are completed without exceeding the estimated budget. However, the rehabilitation costs were underestimated. The construction of the secondary school is still pending. The project performance is satisfactory.
Ask the Government to complete the construction works for the 11th secondary school from its own resources.
The Government must transmit to the Bank a final report on the implementation of the works on the 11th secondary school.
Government/Bank
Sustainability • The buildings have been well
constructed but maintenance is not properly ensured by the COGES and the Government
• Put in place a system and an effective mechanism for the maintenance and sustainability of the facilities and equipment acquired..
• Include a preventive maintenance and
repair training component in future operations in order to ensure that, in the implementation of projects, permanent measures are put in place to guarantee the maintenance and repair of facilities constructed.
• Systematically mainstream the
introduction of environmental studies in all primary and secondary school curricula.
Discuss problem with the government during project preparation missions. The environmental component of the project was only in its pilot stage. The government should mainstream environmental education following the achievement of the specific objective of this component.
Government Government/Bank Government
ANNEXE 8
REPUBLIC OF COTE D’IVOIRE: EDUCATION IV PROJECT
Observations of the Government on the Bank’s Project Completion Report
The report was submitted to the Ivorian Government, represented by the Director of the PIU, who made observations, mainly in relation to the form. These observations were incorporated into the document. The only observation on the content related to a recommendation to conduct the project audits for fiscal years 1999 to 2003, but which it said was subject to it obtaining information contained in the ledger to be provided by the Bank. It is necessary to indicate that the Bank’s failure to provide this information does not constitute the main reason for the non-performance of these audits. Consequently, the recommendation was maintained as initially formulated.
ANNEX 9 Page 1 of 4
REPUBLIC OF COTE D’IVOIRE: EDUCATION IV PROJECT
Statistical Data on Primary Education Table 1: GROSS ENROLMENT RATE BY REGION AND BY GENDER FROM 1999/2000 TO 2004/2005 BEFORE SEPTEMBER 2002 AFTER Gross Enrolment Ratio 1999/2000 2000/2001 2001/2002 2002/2003 2003/2004 2004/2005
