Document of The World Bank FOR OFFICIAL USE ONLY Report No: 35798-SN PROJECT APPRAISAL DOCUMENT ON A PROPOSED CREDIT IN THE AMOUNT OF SDR 20.5 MILLION (US$30 MILLION EQUIVALENT) TO THE REPUBLIC OF SENEGAL FOR A QUALITY EDUCATION FOR ALL PROJECT IN SUPPORT OF THE SECOND PHASE OF THE TEN-YEAR EDUCATION AND TRAINING PROGRAM August 8,2006 Human Development I1 Africa Region This document has a restricted distribution and may be used by recipients only in the performance o f their official duties. Its contents may not otherwise be disclosed without World Bank authorization. Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized
Transcript
Document o f The World Bank
FOR OFFICIAL USE ONLY
Report No: 35798-SN
PROJECT APPRAISAL DOCUMENT
ON A
PROPOSED CREDIT
IN THE AMOUNT OF SDR 20.5 MILLION (US$30 MILLION EQUIVALENT)
TO THE REPUBLIC OF SENEGAL
FOR A
QUALITY EDUCATION FOR ALL PROJECT
IN SUPPORT OF THE SECOND PHASE OF THE TEN-YEAR EDUCATION AND TRAINING PROGRAM
August 8,2006
Human Development I1 Africa Region
This document has a restricted distribution and may be used by recipients only in the performance o f their official duties. I t s contents may not otherwise be disclosed without World Bank authorization.
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CURRENCY EQUIVALENTS (Exchange Rate Effective July 31,2006) Currency Unit = CFA Franc (FCFA)
US$l = 511FCFA FISCAL YEAR: January 1 - December 3 1
US$1.476 = 1 SDR
ABBREVIATIONS AND ACRONYM ACE!. ......... I.. .Canadi.an..!?terna!lo?a! .Deve!o~.ment.,enenc~..~c!.DA) ........................
AfDB African Development Bank or Banque Africaine de Developpement I , n r n \
French Development Agency or Agence FranGaise du Developpement
Middle school completion examination or Brevet de Fin d'Etudes de
Middle schools or colleges de l'enseignemenf moyen ........
/ /'€/emenfaire ................................... 1 ....................................................... " ................................................................................................. " .......................................... CGE .................. ! .... .school..r?.aa.9eme?t..co.mm.i!!ee.or..c~~i~~..de .~e~~i~~.,de.!'ec0!e ..................... clME Ministry of Education's data unit or Cellule lnformatique du Ministere
i ! de Education ~ .................................. ....................................
'ONSF 1 de I
I Directorate of Administration and Management or Direction de
I Directorate of Literacv and National Lanauaaes or Direction de
Education ef de la Formation ................................................................................................................................... ~ ............................................................... ............ CY!? .................... I .... Re~ .~on ,a ! . . un i ve rs i ! i es . . - . .Co ! !~~e~ . .Y~ i~e~~ i~~~~e~ .~~~~o~~~x .... " ................................ RAE ..................... I .... .Divisio es.Eina? .................................... + ~ /Administration Generale et de I'Equipemenf ............................................................................................................................... .......................... ., .,
IAlpbabbtisatfon et d;is Langues Nafionales" Directorate of School ConstrLct,on or Directfon de la Consthcffon et
UHLN
I de I'Equipemenf Scolaire Directorate of Debt and Investment or Direction de la Detfe et de
i Directorate for Elementary Education or Direction de Enseignement
nC,,PP . Directorate of Middle and General Seconaary Ebucation or Direction I de I'Enseignement Moyen et Secondaire G6neral ........ ..............I... ...................................................... ..................................................................................................... ................................... I.
DE,,c ~ Division of Examinations and Tests or Division des Examens et
E ..................... .oeve!sl2men!..Polic~. Lend!?Il.!nstrumen! ..... " ............................................................................................ DPRE 1 Directorate of Planning and Education Reform or Direction de la
i ~lanification et de la Reforme de.!,Education ......... I Directorate of Human Resources or Direction des Ressources ' Humaines I Poverty Reduction Strategy Document or Document Strategique de I RBduction de la Pauvrete
/ Elementary school teacher training institution or €coles de la
.......................................................................................................................................................................................................................... EFA-K! ........ I. .. .Educa!io?..ror.A!!.-..Fa~~..Track..!.ni!ia!ive EFl ....................... I Formation des lnstituteurs ESMF
(French acronymdnames in Ztalics) GER , Gross enrollment rate or faux brut de scolarisafion (JBS) /A Education structure at regional level or lnspection d'academie I
I IDA I International Development Association I .................................... ID8 1 lslamic Development Bank ,nCA, 1 Education structure at district level or lnspection departemenfal
*.............. I de /'education national ........................................ IFR j " Interim Un-audited Financial Report
~ lnstifut National d'Efudes et dlcfion pour le Developpement de ..................................... lNEADE ~" I ................ /'Education " or National Research Institute for Education JlCA I Japan International Cooperation Agency
........................ MDGs " ................ 1 " Millennium Development Goals ............................................................................................................................................................ " ......................................................... MEN 1 Ministry of Education or Ministere de Education Nationale
; Medium-term Expenditure Framework (CDSMT - Cadre des
NGO ......................... i i ..................... Gouvernemenfale) " ..............................................................................................................................................................
I PAD . Project Appraisal Document PAF . . Reg;onal training plans or Plans acad6mfques de formaffon pDEF Senegal's ten-year sector program or Programme dbcennal de
~ I'Educafion et ........................................ de la Formation ................................................................................... i Program for Human Resources Development, financed by
................................... PHRD + 1 Japan PIM ~ Project Implementation Manual
.................................................................................................................................................................................................................................. I
PRF ................... " ............... 1 PRN
1 Regional training centers or P6les rbgionaux de formation I Nutrition Enhancement Programme or Projet de Renforcement ! de la Nutrition ,
PRSC 1 Poverty Reduction Strategy Credit
...................................................................... PRSP 1 Poverty Reduction " Strategy Paper QEFA , Quality Education For All or
i RPF Resettlement Policy Framework I SNERS .. TVET i Technical and Vocational Education and Tra,in,ing .............................
I National Assessment in Senegal (Systeme National I dEvaluafion des Rendemenfs Scolaires) ............................................................................................................................................................................................................................
USAID WAEMU
I United States Agency for International Development ........................................................................................ ." ........ " ......................... " .............. "" ... "."
West African Economic and Monetary Union or UEMOA
Vice President: Gobind T. Nankani Country Director: Madani M. Ta l l
Task Team Leader: Meskerem Mulatu Sector Manager: Setareh Razmara (Acting)
Bank Task Team: Amy Ba, Bourama Diaite, Astou Diaw-Ba, Serigne 0. Fye, Nathalie Lahire, Bettina Mol l , Bjom-Harald Nordtveit, Gerald0 Martins, A tou Seck, Fily Sissoko, Amadou Wade Diagne, Souleymane Zerbo
SENEGAL Quality Education for All Project . Phase 2
CONTENTS
Page
STRATEGIC CONTEXT AND RATIONALE ................................................................. 1 Country and sector issues .................................................................................................... 1
Rationale for Bank involvement ......................................................................................... 3
Higher level objectives to which the project contributes .................................................... 4
Program objective and Phases ............................................................................................ 5 Project development objective and key indicators .............................................................. 6
Policy Exceptions and Readiness ...................................................................................... 17
. .
FOR OFFICIAL USE ONLY
This document has a restricted distribution and may be used by recipients only in the performance o f their off icial duties. I t s contents may not be otherwise disclosed without Wor ld Bank authorization.
Annex 1: Country and Sector or Program Background .................................................... 18
Annex 2: Major Related Projects Financed by the Bank and/or other Agencies .............. 35
Annex 3: Results Framework and Monitoring ..................................................................... 37
Annex 11: Project Preparation and Supervision ............................................................... 115
Annex 12: Documents in the Project File ........................................................................... 116
Annex 13: Statement of Loans and Credits .......................................................................... 118
Annex 14: Country at a Glance ............................................................................................. 120
MAP: IBRD N o . 34868
SENEGAL
QUALITY EDUCATION FOR ALL PROJECT - PHASE 2
PROJECT APPRAISAL DOCUMENT
AFRICA
AFTH2
Date: August 7, 2006 Team Leader: Meskerem Mulatu Country Director: Madani M. Tall Sector Manager/Director: Setareh Razmara
Sectors: General education sector (90%); Central government administration (10%) Themes: Education for all (P); Education for the knowledge economy (P); Gender (P); Public expenditure, financial management and procurement (S); Decentralization (S)
Pro-ject implementation period: Start August 29,2006 Er Expected effectiveness date: November 15,2006 Expected closing date: October 3 1 , 20 10 Does the project depart f rom the CAS in content or other significant respects? Ref: PAD A.3 Does the project require any exceptions from Bank policies? Ref: PAD D. 7 Have these been approved by Bank management?
No
[ ]Yes [XINO [ ]Yes [XINO
I s approval for any policy exception sought from the Board? Does the project include any critical risks rated “substantial” or “high”? Ref: PAD C.5 Does the project meet the Regional criteria for readiness for implementation? Ref: PAD D. 7 Project development objective Ref: PAD B.2, Technical Annex 3 The project objective i s to improve teaching and learning practices in the classroom in order to assist the Government in improving education quality while maintaining i t s focus on reaching universal primary completion by 20 15. The project would do this by: (a) improving both access and retention by expanding the number o f middle school places in the system, improving conditions in existing elementary schools, and by supporting additional literacy courses; (b) improving education quality, with a focus on elementary education; and (c) strengthening management at central, deconcentrated and decentralized levels to ensure attainment o f PDEF objectives.
[ ]Yes [XINO
[XIYes [ ] N o
[XIYes [ No
Project description [one-sentence summary of each component] Ref: PAD B.3.a, Technical Annex 4
Component 1 : Expanding access and improving retention in elementary and middle schools Component 2: Improving education quality in the elementary classroom Component 3 : Strengthening management, monitoring and communication throughout the
system
Which safeguard policies are triggered, if any? Re$ PAD D. 6, Technical Annex 10 The project has triggered OP 4.01 Environmental Assessment and OP 4.12 Involuntary Resettlement due to potential negative environmental and social impacts related to the construction o f schools. The safeguard screening category i s S2, and the environmental screening category i s B. To address potential negative impacts consistent with the requirements o f these safeguard policies, the project has prepared an ESMF and a RPF. In addition to describing the environmental and social screening process, the ESMF makes recommendations regarding capacity building needs to ensure i t s effective implementation, and consultations with potentially affected persons as part o f the screening process that will take place at the time construction plans are prepared. The ESMF and the RPF have been disclosed in-country and at the Bank’s InfoShop prior to negotiations.
Significant, non-standard conditions, if any, for: Re$ PAD C. 7 Board presentation: No Board conditions are included.
Loadcredit effectiveness: The effectiveness condition o f the project i s the following: the Recipient has hired external auditors under ten& o f reference, and with qualifications and experience, acceptable to the Association
Covenants applicable to project implementation: Dated covenants:
The Recipient shall: (a) finance, from i t s budget resources, the construction and equipment o f at least 1,500
elementary classrooms per year during the implementation o f the project;
(b) allocate to the education sector at least 40 percent o f i t s recurrent budget excluding debt service and common expenses (dipenses communes), in each o f i t s annual budgets during the implementation o f the project;
(c) construct one middle-school classroom under i t s own budget for each middle-school classroom constructed under the project, and ensure that adequate water and sanitation services are available for said schools;
(d) allocate under i t s own budget at least 1 bi l l ion FCFA per year during project implementation for the acquisition o f textbooks;
(e) allocate at least CFAF 700 mi l l ion per year under i t s annual recurrent budget for support to schools; and
( f ) no later than thirty days after the end o f each quarter during the implementation o f the project, furnish to IDA al l necessary information on the execution o f i t s budget for the education sector, including budget data on central and deconcentrated (IA and IDEN) levels.
A. STRATEGIC CONTEXT AND RATIONALE 1. Country and sector issues
1. This project appraisal document (PAD) outlines the second phase o f an ongoing sector- wide operation, the Senegal Quality Education for All Project, financed through an adaptable program lending (APL) instrument and supporting the Government’s ten-year education sector development pol icy (Programme De‘cennal de 1 ’Education et de la Formation or PDEF, 1998 - 2009). This is a second-phase APL, and the triggers for the transition f rom Phase 1 to Phase 2 have al l been met.
2. performance. The economy is expected to continue to grow at five to six percent in the next few years, fueled by higher public investment expenditures and gains in productivity in a few key sectors. In 2004, real GDP growth reached 6.4 percent, despite the impact o f the locust invasion, and the inflation rate in 2005 was below 2 percent. With the implementation o f the new Poverty Reduction Strategy, and with Government’s stated intent to improve governance and strengthen decentralization efforts, Senegal is expected to benefit f rom higher economic growth rates, greater equity in the delivery o f basic social services and better protection o f the most vulnerable groups. The main r isks consist o f the political cycle, with important elections next year that may slow down the reform process, and external shocks such as high petrol prices, avian flu and/or drought. In spite o f a marked reduction in the level o f poverty over the past decade, Senegal remains a dual economy, with income per capita averaging US$640 in 2004 and about ha l f o f i t s population living in absolute poverty.
Senegal continues to benefit from political stability and strong macroeconomic
’
3. The first phase of the Government’s sector program met most of its objectives, and the preparations for the second phase are well advanced. At the time o f the preparation o f the f i rs t phase, Senegal had developed its 10-year education sector plan, the PDEF, setting forth i t s objectives, activities and resource requirements for the sector. This program, prepared in collaboration with c iv i l society, other key national stakeholders and international donors, outlined Government’s education pol icy for the period 1998/99 to 2008/09. The first phase o f the PDEF extended from 1998 to 2004, and met most o f its key performance indicators as we l l as al l o f the triggers to transition to Phase 2. The most important gains were in the expansion o f access, where the sector went f rom a gross enrollment rate o f 65 percent in 1998/99 to 82.5 percent in 2005 at a time when the population was growing at an average rate o f 2.7 percent. Girls’ education saw significant improvements: girls entering grade one outnumbered boys for the f i rst time in 2003/04, and the percentage o f girls in al l six grades o f elementary went from 44 percent in 1998/99 to 49 percent in 2005, three percentage points higher than anticipated in the last project. Literacy programs were launched that expanded o n public-private partnerships, and a record number o f learners, more than 80 percent o f them women, enrolled in and completed the 300-hour literacy courses.
4. Deconcentration efforts have resulted in important capacity building at the regional (Inspection d’acadbmie or I A ) and district (Inspection dkpartemental or I D E N ) levels. There i s general consensus that, if the system i s to meet i t s stated objectives, the levels o f the education system closest to the school should be given greater responsibilities and be provided with adequate human and financial resources. Under Phase 1 , the IDA project supported block grants to the regional, district and school levels, with a simplified process for the financing o f the action
1
plans for education quality that the IAs and IDENS developed, including an equally simplified process for the t imely validation o f those action plans, Although it is early days yet to assess pedagogic impact, the financial management o f this process was satisfactory, and the evaluation o f the selection and validation process wil l take place at the beginning o f the next school year. There is no doubt, however, that this tangible presence o f PDEF support in regions, districts and schools was met with great enthusiasm.
5. mechanisms are well developed, with the data unit (the Cellule Informatique du MinistBre de l ’Education or CIME) representing one o f the success stories in Francophone West Africa. Last year, the Government’s education teak developed its sectoral medium-term expenditure framework (MTEF) with support from the Ministry o f Economy and Finance; while i t is s t i l l in i t s nascent stages, i t constitutes an important first step towards a more practical, results-based budget exercise, and education i s leading the other sectors in this exercise. A number o f system- wide indicators are regularly tracked, and made available o n a website that i s updated regularly. There i s st i l l , however, additional work to be done to maintain the accuracy and comprehensiveness o f the data, as wel l as its effective use in pol icy making.
Data collection and sharing showed strong gains, and monitoring and evaluation
6. Donors play an important role in the sector: Donor programs financed and continue to finance an important share o f the education program. Although donor contributions from 2000 to 2005 constituted only 9 percent o f the combined total recurrent and investment expenditures in the sector, when salaries and transfers are excluded from the recurrent budget, donors financed 49 percent o f those recurrent expenditures most directly related to quality inputs, such as purchase o f learning materials or training o f teachers. In addition, approximately a quarter o f the elementary classrooms built during the f i rst phase were donor financed (of these, ha l f were under the IDA credit). Most donors agree to ensure that their projects and programs are wel l situated within the framework o f Government’s Ten-Year Sector Program (PDEF) regardless o f the types o f financing instruments or modalities they use. With the French Cooperation as lead donor, most key donors in the sector routinely meet to discuss issues o f common interest, and conduct a jo int supervision mission mid-year, as wel l as an annual review at the end o f each year, both with participation from a l l key national stakeholders at the central, regional, district and local levels. However, the harmonization o f donor implementation arrangements has not yet been effectively done: parallel implementation arrangements continue to impose high transaction costs for the Government, with the claims o n its time both for visiting missions and for satisfjmg differing reporting requirements. In addition, donors need to rationalize the use o f project units or donor executing agencies in the conduct o f their projects, and participate instead in supporting capacity building for Government. The pooled fimd on capacity building to be financed jo int ly by IDA and AFD under this project will be an important step in this direction.
7. Letter o f Development Pol icy (Annex 6A) was discussed with both national and international partners, including c iv i l society and unions, and a strong consensus has been built around the pol icy areas identified in that Letter. Government has shared with donors i t s financing framework for the sector, informed by an evolving simulation model, and the discussions are well advanced with regard to the development o f action plans that wil l deliver on both international objectives (the MDGs in particular) and the national ones as outlined in the PDEF.
Policy discussions are well advanced, and a consensus exists on most policy areas: A
2
8. An important first step has been taken to rationalize teacher use: A recently completed survey o f teachers by the Directorate o f Human Resources in the Ministry o f Education found more than 2,000 “ghost” teachers in the system. This survey was substantially supported by the work o f the CIME, accompanied by a physical audit conducted in a sample o f schools to ensure that the school-level data were accurate. After an internal verification process, the Government has stopped the payment o f salaries for those not found in the system, and will conduct another personnel audit in 2006/2007.
9. However, there were some challenges s t i l l facing Government. Improvements in quality were slow in coming in the first phase, the program focus having been o n improving access. Although there was a concerted effort to pi lot quality interventions and to support the collection o f robust data o n student achievement, pol icy action was slow in using that information for system improvements. Middle schools and technical and vocational education and training (TVET) received declining shares o f the education budget, and their growth has been either ad hoc in nature, as in the case o f NGO- and community-supported middle schools that sprouted in rural areas, or has benefited l i t t le from investments or innovation, as in the case o f TVET. Continued concessions to political pressures with regard to higher education saw salaries and scholarships in that sub-sector consume a growing share o f the Government budget, leaving l i t t le for quality improvements either in higher education or elsewhere in the system. Some estimates show that, after scholarships, transfers and salaries, less than 9 percent o f the total recurrent budget (Government and donor funds combined) i s left to pay for quality inputs. Even as the deconcentration o f responsibilities within the education system to regional and district education officers i s proceeding in a satisfactory manner, decentralization o f the Government budget to local governments was not seriously implemented despite the existence o f the Decentralization L a w since 1996. Therefore, heavy Government bureaucracies and inadequate accountability for results led to sluggish progress towards attaining quality objectives.
10. Financing of the sector i s growing, though not without i ts challenges: The financing o f education has also been transformed, with substantial increases in Government expenditures in education. Education investment spending has grown at the same rate (60 percent) as overall investment spending since 2000, and about 35 percent o f the recurrent budget’ i s allocated to education in 2005. This is in addition to the continued strong participation o f donors in the sector. However, the quality o f that spending leaves much to be desired: although Government is by far the largest donor to the sector, not only is i t spending almost its entire budget o n salaries and benefits, scholarships and transfers, but there i s l i t t le evidence that these expenditures are favoring priority areas or reaching the poorest populations. With the legislative and presidential elections coming up in February 2007, along with the related pressures to increase salaries and scholarships, and with larger shares o f donor funds now going into budget support, there i s some concern that the attention to quality inputs will suffer.
2. Rationale for Bank involvement 1 1. because o f i t s prominence in the macro-economic dialogue and in i t s long and continued
Although no longer the largest donor to the sector, IDA has a privileged role in the sector
’ Calculated net o f debt services. If the recurrent budget net o f debt service and o f common expenses (dkpenses communes) i s used, that share reaches almost 39 percent. Given the variable and non-transparent nature o f the dkpenses communes, the education team prefers to look at the share o f the recurrent budget only net o f debt service.
3
involvement in the sector over the past 35 years. IDA can help build essential bridges between the education sector and ongoing operations in other sectors, including community-driven development (the National Project for Local Development or PNDL), nutrition (the Nutr i t ion Enhancement Program or PRN) and agriculture (the Agricultural Services and Producer Organizations project or PSAOP), with the links that each has to both human resource development and to activities at the local level. IDA is also in a privileged position with respect to other donor agencies, and i s able to bridge the gap between those donors focused on balance o f payment support but with particular interest in education, and other donors who have primarily proj ect-based assistance but with particular interests in macro-economic issues. The ability to catalyze both multi-sectoral and multi-donor harmonization makes IDA an important partner in the sector for Government, for national stakeholders, and for other donors.
3. Higher level objectives to which the project contributes The project contributes to objectives set at both the international and national levels. First, i t wil l contribute to the attainment o f the Millennium Development Goals related to both education and gender parity. Second, i t supports the Government's Poverty Reduction Strategy, which highlights human resource development as a key national objective, with a particular emphasis on education. Third, the project directly responds to the Country Assistance Strategy, the second objective o f which i s to build national capacities while improving the quality of, and access to, social services. Fourth, the project addresses the objectives outlined in the Afr ica Action Plan, with i t s focus on education as an important contributor to skills development and, ultimately, to growth. Finally, i t contributes to the sectoral objectives related both to poverty reduction and to growth by supporting both quality education and access to middle schools, both o f which would help Senegal create an educated and skilled work force.
B. PROJECT DESCRIPTION 1. Lending instrument 12. ini t ial ly presented to the Board in 2000. Although the init ial design envisaged a third phase o f this APL, the opportunities currently offered by alternative lending instruments, most notably the Development Pol icy Lending (DPL) instrument, and the progressive move towards budget support under the ongoing sector-wide approach, lead the team to recommend that an instrument for the third phase not be pre-determined at this time. Instead, the team aims to assess the conditions for moving to a DPL one year before the end o f this phase. Under the current circumstances, there are three important prerequisites for an effective move to a budget support instrument: first, the current laws and regulations with regard to both per diem and local lines o f credit (caisses d 'avance) have to be modified to enable more budget resources to be transferred at the local levels; second, the decentralization o f the budget to local governments has to be effective; and third, c iv i l service reforms have to be more effectively implemented, including performance-based remuneration and higher salaries for key qualifications. The project will be launching activities that wil l p i lot and support activities reinforcing the first two prerequisites, and the last would be part o f the ongoing PRSC process.
The project would be the second phase o f an Adaptable Program Loan (APL) that was
13. completed in June 2006, and as summarized below:
The triggers for moving from Phase 1 to Phase 2 have been met, as indicated in the I C R
4
2. Program objective and Phases 14. Formation or PDEF, inspired the Letter o f Development Pol icy (2005-201 5), which has been discussed with and validated by al l key stakeholders, and which includes, among others, the fol lowing strategic objectives: Universal completion o f elementary (6 grades) and improved access and quality at al l other levels; eradication o f ill iteracy and the promotion o f local languages; an expanded role for local communities in education; promotion and improved orientation o f vocational training towards the labor market; elimination o f inequality between economic groups (ricldpoor), between the sexes, between and within regions, between rural and urban sectors, at a l l levels o f the education system; inclusion o f children with disabilities; and promotion o f girls’ education.
The ten-year education sector program, Programme De‘cennal de 1 ’Education et de la
15. been further refined by a number o f important pol icy and sector analyses conducted during the first phase (see Annex 12 for a more complete list). These include a Sector Analysis (analyse sectorielle) that brought together a series o f sector studies o n education supply and demand, o n cultural attitudes towards education, on the tracking o f expenditures to their destinations (public expenditure tracking survey). I t also benefited from a series o f annual economic and financial reports that squarely placed the strengths and weaknesses o f the sector on the table at each annual review jo int ly attended by Government, national and donor stakeholders.
The Government’s PDEF document remains an important reference; i t s conclusions have
16. This IDA credit wil l j o i n other donors in the sector to assist Government in attaining its goals. The challenge under the current environment will be to support, and be accountable for, sector-wide objectives while remaining realistic about the ability o f IDA to influence the attainment o f those goals. Therefore, the task team has opted for the fol lowing arrangement: this phase o f the IDA project will track both program and project intermediate outcome indicators, clearly distinguishing between those outcome indicators which would be related to the overall program, and those intermediate indicators related to the implementation o f the project.
17. Program outcome indicators would include (these are selected from a larger matrix)
(a) Access e e e
e
Gross primary enrollment rate for girls and boys will reach 96 percent by 2009 First grade entry wil l reach 103 percent by 2009 Girls as percentage o f a l l students in elementary will reach 49 percent by 2009, and will reach 46 percent in middle schools by 2009 Primary completion wil l reach 78 percent by 2009
5
(b) e e
e
e
(4 e
e e
e e
18.
Quality Repetition rates in primary will decline to 6 percent by 2009; At least 75 percent o f primary students will receive at least the minimum acceptable score in reading, languages, mathematics and science by 2009; Transition rate from primary to middle schools wil l reach 57 percent in 2009; Success rate on middle school exit examination (BFEM) will reach 60 percent in 2009;
Management Education recurrent spending wil l be 40 percent o f a l l Government recurrent spending every year until 2009 (calculated as recurrent budget net o f debt services and o f common expenditures or dkpenses communes); Education recurrent budget allocated to primary will reach 50 percent in 2009; Education recurrent budget allocated to higher education will reach 20 percent in 2009; Middle school teachers will teach o n average 20 hours per week by 2009; Instructional time in education will reach 900 hours by 2009.
Project progress indicators would track the implementation progress under the IDA credit, and would include the following:
Expanding access and improving retention 2,800 middle school places will be created by 2009 (about 100 places per school in 28 schools) and al l wil l be f i l led by the beginning o f the school year after the completion o f construction; 50,000 learners, 70 percent women, wil l be enrolled and 80 percent o f them will complete 300 hours by October 2009;
Improving quality 100 percent o f block grants wil l finance quality inputs at schools as defined in the procedures manual; At least 95 percent o f textbooks purchased by the project wil l be in schools by October 2008, and wil l be used in classrooms as verified by classroom observations; 50 percent o f teachers observed in 2008 and 75 percent o f teachers observed in 2009 will use textbooks effectively; At least 20 schools wil l measure reading accuracy and comprehension by June 2007; at least 1000 schools by 2009.
Strengthening leadership and management of the education system Performance management frameworks (cadres de performance) will be developed and implemented in at least the fol lowing directorates : planning '(DPRE), procurement and financial management (DAGE), human resources (DRH), elementary (DEE), middle and secondary (DEMSG'), evaluation (INEADE), construction (DCES) and for at least two IAs by October 2007; and in al l central directorates, IAs and IDENS by October 2008. Results o f annual statistical campaigns will be made available by April o f each year.
6
3. Project development objective and key indicators 19. practices in the classroom in order to assist the Government in improving education quality while maintaining its focus o n reaching universal primary completion by 2015. The project would do this by: (a) improving both access and retention by expanding the number o f middle school places in the system, improving conditions in existing elementary schools, and by supporting additional literacy courses; (b) improving education quality, with a focus o n elementary education; and (c) strengthening management at central, deconcentrated and decentralized levels to ensure attainment o f PDEF objectives.
The proposed objective o f this phase o f the APL i s to improve teaching and learning
4. Project components
20.
a
a
a
21 * a
a
a
22.
a
a
a
Expanding access and improving retention in elementary and middle schools
Construction o f middle schools in under-served areas (a total o f 28 new coll&ges de 1 'enseignement moyen would be built); Construction o f latrines and water points in elementary schools lacking in such services (a total o f 300 latrine blocs with 6 boxes each, and 170 water points will be provided); Provision o f literacy courses to a total o f 50,000 learners, 70 percent o f whom wil l be female.
Improving education quality in the elementary classroom
Provision o f block grants for quality improvement plans at both deconcentrated (education regions and districts) and school levels; Provision o f pedagogic inputs to schools, in the form o f textbooks and other instructional materials, and library and reading materials; Training o f teachers, inspectors, school directors and mentor teachers, with specific ~
attention to the development o f training modules and the training o f trainers o n improving quality in the classroom; Improve systems o f examinations and evaluation o f learning achievements; and Support for sectoral studies in key related sub-sectors, including vocational training and higher education.
Strengthening management, monitoring and communication throughout the system
Provide support for results-based management within the Ministry at central and deconcentrated levels; Strengthen the monitoring and evaluation system, building o n a strong data collection mechanism; and build capacity for using results for pol icy development Improve communication across al l actors in the system, and p o l l community views on education v ia a community scorecard
Much o f this support will be provided by the PHRD Co-financing Grant from the Government o f Japan that i s administered by IDA.
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5. Lessons learned and reflected in the project design 23. completed, and a number o f lessons can be drawn from that report, f rom the implementation status reports (ISRs), and from the completion reports from previous projects. These include: (a) focusing o n a selected number o f components to reduce project complexity and improve implementation progress; (b) addressing quality problems early and decisively, with clear exit strategies in those cases when progress i s stalled; (c) addressing political constraints as an important factor in implementation (this is particularly important in the current situation, when election year campaigning and negotiations have already begun); (d) related to the above lesson, setting realistic goals for pol icy making and for implementation, taking into account absorptive and implementation capacity; and (e) addressing institutional dysfunctions early in the process. The components selected will directly or indirectly incorporate these important lessons.
The Implementation Completion Report for the first phase o f the project has just been
6. Alternatives considered and reasons for rejection 24. with a sector investment loan; and (b) incorporating the education project in the ongoing Poverty Reduction Strategy Credit (PRSC). In the end, the team opted for a Phase 2 APL because (a) the conceptual framework o f the APL i s s t i l l relevant under this sector-wide approach, within which this phase selectively addresses key sub-sectors, and consolidates the gains o f pi lot projects undertaken under Phase 1; (b) the current PRSC i s already covering cross-cutting macro- economic issues in addition to incorporating health and social protection. The task team does, however, closely coordinate with the PRSC team to ensure that the cross-cutting themes o f budget reforms and human resource management targeted by the PRSC incorporate issues critical for the education sector. The team has elected not to prepare triggers for transition to a third phase o n the understanding that, by 2009, other instruments including the PRSC would offer important alternatives to either an APL or a SIL.
The team considered several alternatives, including the possibility of: (a) proceeding
C. IMPLEMENTATION
1. Partnership arrangements (if applicable)
25. The donors involved in education in Senegal are numerous, including ACDI, AFD, AfDB, Coope‘ration FranCaise, IDB, JICA, U S AID, the European Commission and the European Union, and the bilateral agencies o f Belgium, Luxembourg, the Netherlands, Germany, Switzerland, (to mention a few). There i s considerable progress made towards providing harmonized support to the sector within the framework o f Government’s ten-year sector program, although there i s st i l l a lot to be done. At the time o f the preparation o f this project, the donors had already synchronized the major supervision and review missions, now done jointly, and have concluded a jo int assessment o f the proposal by Senegal to be considered for the Education For All Fast Track Initiative (EFA-FTI). In addition, a common matrix o f indicators to track progress under the second phase has been agreed upon between the three donors with projects under preparation (AFD, A C D I and IDA), and will also be considered by the other donors. Finally, AFD, A C D I and IDA have agreed to establish a common set o f unit costs for use in their projects, including those related to per diem, transport and field visits, as these have distorted incentives in the implementation o f the different donor programs.
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26. modalities have been retained. First, the Government o f Japan has awarded a PHRD Cofinancing Grant o f US$4 mi l l ion to Senegal, to be administered by IDA. This Grant has, as its objectives: (a) capacity development for access, through improved management at decentralized and deconcentrated levels; (b) capacity development for the delivery o f quality education, by improving monitoring and evaluation at central and deconcentrated levels; and (c) capacity development in management, including the improvement o f organizational effectiveness and o f core support functions at the Ministry.
Donor harmonization: In addition, under this project several parallel and co-financing
27. will put into place a pooled capacity building fund to ensure coherence and consistency in the donor-financed capacity building measures. Other donors, including possibly the Canadian International Development Agency (ACDI) and the Government o f the Netherlands, will be invited to participate in these arrangements. While the capacity building hnd would be pooled, the rest o f the project would disburse exactly as was done under Phase 1 through a designated account and sub-accounts.
Second, the IDA project, together with the Agence franqaise de De'veloppement (AFD),
28. middle schools. U S A I D has already launched an innovative project for the construction, equipping and effective operation o f rural middle schools (colleges de proximite?, bringing together an external implementation agency with a national non-governmental organization (NGO) in several regions. Although the IDA project i s committed to using Government structures for implementation and would intervene in al l regions, the innovations under U S A I D are o f particular interest. A partnership arrangement has been agreed to, therefore, between U S A I D and IDA to: (a) use the same architectural specifications for construction, with the appropriate modifications to make the buildings accessible to disabled students; and (b) extend the implementation arrangements under U S A I D financing to other regions in Senegal. Under this arrangement, IDA would finance the construction o f middle schools, while U S A I D would finance the setting up o f the community participation arrangements through its executing agency and NGO partners, to ensure the appropriate consultative processes are put into place, to effectively channel community and local government contributions, and to ascertain that the needs o f communities are adequately addressed in the site selection and construction activities. Consequently, each donor would provide support in those areas where i t has a comparative advantage. Each donor would use its own procurement and disbursement procedures to minimize bureaucratic complications.
Third, the IDA project has agreed with U S A I D to combine efforts in the construction o f
29. sectors:
In addition, this project aims to exploit links both with ongoing Bank operations in other
0
0
Nutri t ion Enhancement Program (PRN): School nutrition and health activities will be fully coordinated with the ongoing and upcoming nutrition projects; Local Development Project (or PNDL, representing the merged Fonds National de Diveloppement Social and Projet National de 1 'Infrastructure Rurale): The capacity building activities envisaged under the PNDL project are an important contributor to the decentralized primary construction activities planned under the education project; Second Agricultural Services and Producer Organization Project (or PSAOP): To exploit the synergies between training activities in the agricultural sector and the middle school
0
9
education in rural areas, the two sector teams have already launched a jo int study that would identify the main causes o f rural school dropout as we l l as the current opportunities available for children who have never attended, have dropped out of, or have successfully completed middle schools in rural areas. The project would use the outcome o f this study to further develop curricula for middle schools.
2. Institutional and implementation arrangements
30. Technical Education and Vocational Training implementing any activities related directly to i t s sub-sectors.
The project would be implemented by the Ministry o f Education, with the Ministry o f
3 1. Technical Education and Vocational Training are charged with the implementation o f the Government's 10-year Development Plan, supported by this IDA Credit. The Director o f Planning and Education Reform (DPRE) will be charged with the coordination o f the activities to be carried out .under the PDEF, including those under the IDA credit. The Minister o f Education will have overall responsibility for sectoral and policy coordination, and he and/or his designee will chair the Steering Committee consisting o f the directors and heads o f related structures. This would help avoid the current impasse where the DPRE coordinates directors who are al l at his level with no systematic mechanism for resolving differences. At negotiations, Government confirmed the composition o f the Steering Committee and i t s terms o f reference, including the coordination mechanism to be used.
Overall project orientation and coordination: The Ministers o f Education and o f
32. Directorate (DA GE), which handles fiduciary responsibilities, namely procurement and financial management. In addition, regional accountants recruited as contractuals and reporting to the DAGE have been placed in each o f the 11 regions. Although they are currently financed under the IDA credit, the regional accountants are expected to handle deconcentrated funds from al l sources, including those from the capacity building pooled fund to be created under Phase 2.
A team has been constituted, attached to the General Administration and Equipment
33. Financial management and disbursement. Overall financial management and disbursement for the project will be handled by the DAGE, in coordination with the Directorate o f Debt and Investment (OD0 at the Ministry o f Finance. In addition, the regional accountants mentioned above (para. 32) will handle the financial management and disbursement o f the activities at the deconcentrated level. Funds will be disbursed v ia a designated account and designated sub-accounts as outlined in h e x 7. The project will prof i t f rom the strong experience o f the DAGE in managing IDA funds under past projects. Disbursement wil l be based on Interim Un-Audited Financial Statements (IFR). IDA funds for the capacity building sub-component would be pooled under the designated account along with those from the Agence francaise de De'veloppement (AFD). All other components and sub-components would be disbursed exactly as was done under Phase 1.
3. Monitoring and evaluation of outcomes/results 34. detailed indicators, and baseline and target values for which are included in h e x 3. In addition, to ensure that the sector continues to be o n track for meeting the EFA goals, the
A monitoring and evaluation framework has been agreed upon with Government, the
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Government and i t s donor partners have come up with a matrix o f EFA FTI indicators for annual review. That matrix is largely drawn from the existing common matrix o f indicators discussed in para. 25 above with a few additional indicators for determining whether the hypotheses incorporated into the EFA FTI matrix s t i l l hold.
4. Sustainability 35. political will to take difficult decisions than to the availability o f resources. The Government currently allocates a large share o f its budget to education (more than 39 percent o f recurrent expenditures net o f debt service and o f common expenses, and 22 percent o f Government revenues). Overall, Government provided 91 percent o f the resources to the sector over the past five years, showing that financial sustainability is not an issue. In addition, Government has moved more resources to the local levels by deconcentrating a number o f responsibilities and a l imited share o f the budget to regional and district levels, and by supporting block grants to schools to finance small school improvement plans (projets d ’e‘coZe/d ’e‘tablissement). However, the intra-sectoral allocation o f both the investment and recurrent budgets leaves many important gaps: a disproportionate focus on salaries, transfers and scholarships leaves less than 9 percent o f the recurrent budget for qualitative inputs. A strong preference for higher education leaves middle and high schools grossly under-resourced.
The challenges related to the sustainability o f the program are more related to the lack o f
5. Critical risks and possible controversial aspects:
Risk Potential for disruptions due to upcoming elections: Not only a major risk, but with limited scope for identifying mitigating steps. Potential lack of capacity at local government levels to attain ambitious objectives for decentralized school building
Unwillingness to proceed with much needed institutional reforms
Resistance to demand-side strategies in communities with low formal schooling. Some traditional communities have long resisted sending their children to “modern” schools, although the trends appear to be changing. Lack of recurrent expenditures in quality areas, such as textbooks, training and school grants.
Mitigation Measures The ongoing IDA project has focused on involving, to the extent possible, local actors at regional, district (ddpartement) and school levels, in hopes that the involvement o f these stakeholders, a l l o f whom are important to their elected officials, will help stabilize policy gains in the face o f political pressure. After discussions with the Ministry o f Economy and Finance as well as wi th the Association o f Elected Officials, the project wil l support: (a) evaluation o f local governments’ capacities and their training needs; and (b) putting into place transitional arrangements during the time when that capacity building i s being undertaken. There i s a risk that any organizational reforms w i l l be resisted by the bureaucracy. Given the limited success o f such efforts in the past, the IDA project would finance activities that would enable the Government team to diagnose dysfunctions and address them, in the hope that the team w i l l own not only the problem but also the solutions. A minimum requirement for many such communities appears to be the offer o f Arabic as a medium o f instruction o f at least some courses, including courses in religion. T h e Government has been slowly building trust at local levels with religious leaders and has been able to offer Franco-Arabic public schools that both meet official curricular requirements and allay community concerns.
To ensure Government budget will continue to finance non-salary recurrent expenditures, especially in those identified areas, the project w i l l include dated covenants for ensuring annual recurrent budget allocations for qualitative inputs.
Rating* H
M
S
M
M
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Rating scale: H=high; S=substantial; M=modest; N=Low or negligible * Risk rating with mitigation
6. Credit conditions and covenants
36. The effectiveness condition i s the following: the Recipient has hired external auditors under terms o f reference, and with qualifications and experience acceptable to the Association.
Dated covenants: The Recipient shall:
finance, from its budget resources, the construction and equipment o f at least 1,500 elementary classrooms per year during the implementation o f the project;
allocate to the education sector at least 40 percent o f its recurrent budget excluding debt service and common expenses (“dkpenses communes”), in each o f its annual budgets during the implementation o f the project;
construct one middle-school classroom under i t s own budget for each middle-school classroom constructed under the IDA credit, and ensure that adequate water and sanitation services are available for said schools;
allocate under i t s own budget at least 1 bi l l ion FCFA per year during project implementation for the acquisition o f textbooks;
allocate at least FCFA 700 mi l l ion per year under its annual recurrent budget for support to schools; and
no later than thirty days after the end o f each quarter during the implementation o f the project, furnish to IDA al l necessary information o n the execution o f i t s budget for the education sector, including budget data on central and deconcentrated (IA and DEN) levels.
D. APPRAISAL SUMMARY 1. Economic and financial analyses 38. especially o n the quality o f primary education during Phase 2. I t i s we l l established that spending on elementary and secondary education has a direct impact on the health condition o f families as wel l as on agricultural productivity. In Senegal, analyses show that the income and productivity o f rural populations are significantly enhanced by their level o f education, particularly those who attended secondary education, followed by those who went through elementary. Regarding the health sector, analyses also show that one additional year in a mother’s level o f education reduces by almost 3 percent the likelihood that her chi ld wil l experience growth problems.
There is strong economic and social rationale for focusing on primary education and
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39. enrollment rates have evolved at a l l levels o f the education system, quality o f elementary education as we l l as access to middle and secondary schools for the poorest in rural areas remain o f major concern. Government recurrent expenditures are used primari ly to support the wage bill, with little left over for financing quality inputs. Despite the growth in enrollments, total expenditures on quality totaled about 8.7 percent o f overall recurrent expenditures over the period 2000-2005. This, in turn, has resulted in a sharp reduction in per student spending on quality inputs.
Although spending o n education has sharply risen over the period 2000-2005, and gross
40. Current recurrent spending per pupil i s 16 percent o f GDP per capita - above the target o f 12 percent for countries o n track for reaching Education for All. However, the share o f GDP that goes into quality inputs i s less than 5 percent - much lower than what is required to ensure adequate quality. Continuity in schooling for poor rural populations is difficult due to the lack o f sufficient places in middle and secondary schools. Currently, most new middle schools are built in urban areas while temporary shelters or rented buildings are used to enroll rural children. These challenges are further exacerbated by inefficiencies in human resources management and budget allocation in the education sector.
41. The Government aims to achieve the MDGs by 2015; its interim goals are to reach 96 percent primary gross enrollment and 78 percent primary completion by 2009 while modestly improving the transition rate between elementary and middle schools. The pol icy choices made to guarantee the achievement o f these results are: (i) maintaining the pol icy o f recruiting contractual teachers at elementary and extending this pol icy in middle and secondary schools; (ii) developing a strategy for maintaining teachers in rural areas; (iii) constructing 2400 elementary classrooms and replacing 300 per year for a total o f 2,700 new classrooms constructed in elementary per year; (iv) allocating 50 percent o f i t s recurrent expenditures to elementary education; (v) increasing the share o f non-salary expenditures, and using the funds to implement a block-grant mechanism to schools and to reform pre and in-service teacher training; and (vi) reducing elementary grade repetition from 14 percent in 2004 to 6 percent in 2009. The IDA project wil l assist the Government in addressing key issues and bottlenecks to achieve the MDGs. It will mainly focus on quality improvement at the elementary level and expand access in middle school.
42. targets as outlined in both PDEF and MDGs. A three-year Medium Term Expenditures Framework (MTEF) to finance the total cost o f the second phase o f PDEF was prepared by the Government. The estimated costs are 1 , 100 bi l l ion FCFA (about US$2.2 billion) for the period 2006-2008. The Government plans to contribute about 760 bi l l ion FCFA (US$ 1.5 billion) representing 67 percent o f the total budget. Sustainability prospects for this period are positive as the GDP growth rate i s expected to average 5.1 percent. Therefore, i t i s assumed that Government will be able to meet i t s commitment to the education sector. At appraisal, there was a financing gap o f about 56.9 bi l l ion FCFA (US$113 million) representing 5 percent o f the total cost o f the second phase (2007-2009). The Government o f Senegal is s t i l l seeking additional resources from other donors; however, if other donor funds are not forthcoming, Government would be encouraged to revise its intended targets in the post-basic cycles.
A financial analysis was conducted to evaluate both the sustainability and achievement o f
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2. Technical 43. Senegal, as was done under Phase 1 and in l ine with the Government’s ten-year sector program (PDEF). The approach taken to ensure improved teaching and learning in the classroom in elementary and in middle schools consists of: (a) improving effective access by improving conditions in existing elementary classrooms and creating additional spaces in rural middle schools; (b) providing inputs (both pedagogic and effective teaching) to the classroom to improve learning; and (c) moving b d s closer to the school to improve effective use and accountability. Although the availability o f trained teachers, didactic materials and additional resources is a necessary condition for improving teaching and learning practices in the classroom, it i s not a sufficient one. School-level supervision and support are key to the instructional improvements sought under the project, and school directors, inspectors, pedagogic advisers and senior teachers would al l be trained to provide classroom level pedagogic support. Reading would be given prominence in teacher training and in classroom evaluations, and funds would be made available to ensure that teachers are both trained in the use o f the learning materials, and are effectively using them as recorded in classroom observations. School- and system-level management would also be enhanced, to ensure that the appropriate management skills are employed, and the performance indicators identified to improve accountability. Direct support to schools wil l improve equity and ensure quality service delivery. The joint-donor supervision missions held each spring as wel l as the annual review missions held each fal l will review progress against set objectives with the participation o f a l l key stakeholders.
The project will provide continued support to the development o f the education sector in
3. Fiduciary 44. Since the Country Financial Management Assessment (CFAA) o f Senegal was conducted in 2003, the Government has taken important steps to address the noted issues. I t created an Executive Secretariat under the Ministry o f Economy and Finance to monitor the implementation o f the C F A A action plan over the past three years. The HIPC Country Assessment and Act ion Plan by the Bank and the IMF in November 2004 showed important improvements in the areas o f public expenditure tracking - notably in the priori ty areas defined in the PRSP, budget preparation and execution. However, significant progress i s s t i l l needed in internal and external controls o f budget execution and state-owned enterprises. In addition, decentralization and local government finance have not been implemented as planned. Various studies in Senegal show that excessive centralization o f decision-making and lack o f accountability undermine communities’ and local governments’ ability to manage their own affairs. Inadequate inter- governmental fiscal transfers, cumbersome procedures, and a weak tax collection system constitute additional obstacles for local development. Several IDA projects including the existing education project will assist in addressing some o f those deficiencies.
45. A Financial Management Assessment (FMA) was carried out as part o f the appraisal mission. The conclusion o f the Financial Management Assessment (FMA) i s that the financial management arrangements for the project satisfied the World Bank’s minimum requirements under OPA3P10.02. Some complementary actions, notably the recruitment o f an external auditor and the updating o f the accounting software, were identified and are summarized in Appendix 1 o f Annex 7. Given the strong experience o f the DAGE in managing IDA funds, the disbursement method will be the Interim Un-Audited Financial Statement (IFR)-based disbursement mechanism.
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4. Social 46. Several key constraints to effective access to and successfbl completion o f education by al l children have been identified under the first phase. The issues that were o f particular concern included: (a) the lack o f parity between boys and girls in terms o f access, although progress has been made in the lower grades; (b) the gap in learning achievements between boys and girls, at al l levels; (c) the lack o f effective access for children with special needs; and (d) the disparities between rural and urban areas in terms o f access and learning outcomes. The Government has integrated these issues in i t s national education pol icy and has launched a series o f actions that are aimed at addressing these problems.
47. Under the f i rs t phase, though gender parity in enrollments has almost been achieved in elementary, boys are st i l l more l ikely to graduate and generally have more years o f schooling. By supporting more effective teacher training, increased access to instructional materials, and enhanced supervision and monitoring at the school level, the IDA credit would improve learning for al l students - by putting greater emphasis o n the closing o f the gap between boys and girls in the results framework, the project will ascertain that this gap, as we l l as the access and achievement gaps between urban and rural children, and between children with and without disabilities, wil l be addressed. Providing schools with running water and sanitary facilities has also been shown to improve opportunities for girls’ education, especially as they approach puberty. Finally, providing increased awareness o n the importance o f girls’ participation will be intensified through communication campaigns.
48. Senegal’s education pol icy states the need for mainstreaming children with disabilities to the greatest extent possible. Under the first phase, the PDEF supported the provision of learning materials to a number o f specialized schools. This project will focus on mainstreaming students with disabilities within regular schools: in addition to using community-level interventions for the identification o f and support to children with disabilities, the Ministry will develop instruments and materials that would lead to improved training o f a l l teachers (general and specialized), wil l improve accessibility in school infrastructure, and improve monitoring and evaluation including data collection, that directly benefit children with disabilities.
49. The gross enrollment rate is estimated at 95 percent in urban areas and 70 percent in rural areas, with a significant number o f out-of school children in the regions o f Diourbel, Kaolack and Louga. No t surprisingly, poverty i s also more widespread in rural areas, where two-thirds o f the population i s poor. Although significant progress has been made in terms o f access, rural areas remain at a disadvantage. Therefore, the project will construct 28 middle schools in rural areas to enable students to continue their education - this, in turn, i s expected to have an important incentive effect for the completion o f primary in those areas. In the case o f those traditional communities where the role o f instruction in Arabic i s seen as an important pre- requisite, Government has been slowly building trust among the religious communities by offering Franco-Arabic schools that offer the official curriculum using both French and Arabic as languages o f instruction.
50. important part o f the communications activities under this project. The project will support annual community scorecards, the f i rs t o f which wil l take place at the beginning o f project implementation, to assess how communities view education issues.
Getting feedback from communities with regard to their perceptions about education is an
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5. Environment 5 1. Potential negative environmental and social impacts (air pollution, soil and water pollution, soil erosion or loss o f vegetation) might result from the construction o f schools. To effectively address potential impacts o n the environment, the project has prepared: (i) an Environmental and Social Management Framework (ESMF) designed to identify, assess and mitigate potential environmental and social impacts; and (ii) a Resettlement Policy Framework (RPF) to address potential negative social impacts related to land acquisition and/or loss o f economic activities. These frameworks were prepared because the exact locations and potential localized impacts o f the new schools were not known prior to appraisal.
52. management and a screening mechanism to ensure that al l relevant activities are screened on their environmental and social impacts, and where called for, l imited environmental analyses wil l be carried out to mitigate the impact. As most o f the construction activities are relatively modest in size, i t i s envisaged that the impacts are normally small and thus a checklist will suffice. Therefore, the impact o f a l l sub-projects wil l be effectively addressed and adequately monitored during project implementation.
The Project Implementation Manual wil l include a chapter on environmental and social
6. Safeguard policies 53. Resettlement due to potential negative environmental and social impacts related to the construction o f schools. The safeguard screening category i s S2, and the environmental screening category i s B. T o address potential negative impacts consistent with the requirements o f these safeguard policies, the project has prepared an ESMF and a RPF. In addition to describing the environmental and social screening process, the ESMF makes recommendations regarding capacity building needs to ensure i t s effective implementation, and consultations with potentially affected persons as part o f the screening process that will take place at the time construction plans are prepared. The ESMF and the RPF were disclosed in-country and at the Bank's InfoShop prior to negotiations.
The project has triggered OP 4.01 Environmental Assessment and OP 4.12 Involuntary
Safeguard Policies Triggered by the Project Yes No Environmental Assessment (OPBP/GP 4.0 1) [XI [I Natural Habitats (OPBP 4.04) [I [XI Pest Management (OP 4.09) [I [XI Cultural Property (OPN 11.03, being revised as OP 4.1 1) [I [XI Involuntary Resettlement (OPBP 4.12) 1x1 [I Indigenous Peoples (OD 4.20, being revised as OP 4.10) [I [XI Forests (OPBP 4.36) [I [XI Safety o f Dams (OPBP 4.37) 11 [XI Projects in Disputed Areas (OPBP/GP 7.60)' [I [XI Projects on International Waterways (OPBP/GP 7.50) [I [XI
' By supporting thepropobedproject, the Bank does not intend to prejudice thefinal determination of theparties' claims on the disputed areas
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7. Policy Exceptions and Readiness
Fiduciary arrangements in place: The fiduciary team is already in place within the DAGE.
Proiect staff in place: The project staff are al l in place. I t bears noting that this project i s being implemented by the Ministry (and not by a project unit) with only a l imited number o f experts placed in those directorates lacking capacity in key areas (financial management and computerhnfonnation management).
Counterpart funds budgetedreleased: A s the Bank has established country financing parameters for Senegal, the project wil l finance 100 percent o f expenditures identified under the IDA project. T o ensure continued Government commitments to priori ty areas, dated covenants have been included in this project to track budget allocation and execution (see Section 6 above).
Procurement plan for the first 18 months o f activities: This was provided at negotiations.
Disclosure requirements met: All disclosure arrangements have been met. The Environmental and Social Management Framework and the Resettlement Plan were f i l ly disclosed.
Results assessments arrangements completed: The Results Framework has been discussed and agreed upon with Government.
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Annex 1: Country and Sector or Program Background
SENEGAL: Quality Education for All Project - Phase 2
Senegal i s located o n the west coast o f Afr ica and i s part o f the West Afr ican Economic and Monetary Union (WAEMU). With a population estimated at about 10 million, i t s economy i s dominated by a few strategic sectors, including groundnuts, fisheries, and services. The informal sector accounts for about 60 percent o f i t s economy. In 2004, real GDP growth reached 6.4 percent, despite the impact o f the locust invasion, and the inflation rate i s below 2 percent
Senegal continues to benefit from political stability and strong macroeconomic performance. The economy is expected to continue to grow at a rate o f f ive to six percent in the next few years, driven by higher public investment expenditures and gains in productivity in a few key sectors (electricity, groundnuts, water) derived from on-going reforms. The main risks consist o f the political cycle, with national and regional elections coming up in February 2007, which may slow down the reform process, and external shocks such as locust invasion, high gas prices, avian flu or drought. In spite o f a marked reduction in the level o f poverty over the past decade, Senegal remains a dual economy, with about ha l f o f i t s population s t i l l living in absolute poverty and an average income per capita o f less than US$640.
I t i s within this context that the project will be implemented. At the time o f the preparation o f the f i rst phase o f the APL, Senegal had developed its 1 O-year education sector plan, the Programme De'cennal de I 'Education et de la Formation or PDEF, setting forth i t s objectives, activities and resource requirements for the sector. This program, prepared in collaboration with c iv i l society, other key national stakeholders and international donors, outlined Government's education pol icy for the period 1998/99 to 2008/09. The first phase o f the program extended from 2000 to 2005, and the IDA credit supporting that phase (the Quality Education for All Project, Cr. 3333- SN) met most o f its key performance indicators as wel l as a l l o f the triggers to transition to Phase 2.
The table below sets out the main goals/objectives o f the PDEF
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I I I I , 1 1 1
I I
I I l l 1 I I l l 1 I I I I I I
Government sectoral policy The recently approved Letter o f Development Policy (January 2005) sets out both the strategic choices made to reach the MDGs, and the related allocations to the key sub-sectors (it i s included as Annex 6A). Commitments in that Letter include: universal primary completion and increased access to the other levels; improved education quality at a l l levels; eradication o f illiteracy and promotion o f national languages; increased responsibilities for local communities including in school management, monitoring o f quality and mobilization o f resources; increased linkage between vocational training and the labor market; elimination o f disparities including regional, gender, ricWpoor, rural/urban and inclusion o f students with disabilities; regional cooperation within CDEAO, and partnership with key stakeholders.
The Letter o f Development Pol icy (Lettre de Politique Gkne'rale pour le Secteur de 1 'Education et de la Formation or LPG) has been approved and validated by al l stakeholders, including al l major donors to the sector. I t should be noted that the hypotheses underlying the Letter require both rigorous management and coordination, and unfailing political will. However, Government commitment remains uncertain, especially with regard to the intra-sectoral allocations: middle schools continue to receive insufficient resources for the attainment o f the PDEF goals; both vocational training and literacy receive far lower allocations than what i s stated in the Letter, and the sub-sector that benefits the most i s the higher education system, which receives by far the largest shares o f the investment and recurrent budget in per-student terms, and the second largest after primary in absolute terms.
The education system consists o f the following: i) Pre-school education as part o f the integrated approach to early childhood development for
children three to five years old. This sub-sector experienced a sharp increase in enrollments in the f i rst phase, particularly in the rural areas, due in large part to the strong support f rom Government and the development o f both community and public models, including the center-based cases des tout-petit. The private sector plays a large part, although public pre- schooling has grown dramatically in recent years.
Elementary education (also referred to as primary) now2 enrolls children between 6 and 12 years old in grades 1-6, known as CI, CP, CEI, CE2, CMI and CM2. At the end o f elementary education, students take the Certificate o f Completion o f Elementary (Cert@cat de F in d 'Etudes de 1 'Ele'mentaire), which certifies completion o f elementary education. There is a subsequent selection process, called the Concours d 'Entre'e en SixiBme, which selects those who wil l enter into middle school. Private education plays a relatively small part at the elementary level, and i s l imited to urban, elite schools.
iii) Middle schools encompass the four next grades (referred to as 68me, 58me, 48me and 38me) enrolling13 to 16 year olds. The share o f private schools in this sub-sector is quite high (23.2 percent in 2005), though it has been dropping against the growth in public school enrollments over the past few years. At the end o f the loth grade (38me), students take the end-of-cycle examination (Brevet de F in d 'Etudes de 1 'Enseignement Moyen or BFEM). Thos who pass this examination are eligible to enroll in general secondary or in technical and vocational education.
ii)
Government passed a new law in 2005 changing the entry age for compulsory education f rom 7 to 6.
21
iv) General secondary education lasts three years, covering grades 11-13 (Seconde, Premidre, and Terminale) after which students take the end-of-cycle examination, the baccalaur&t; any student who passes this examination is guaranteed a place in higher education.
Technical and vocational education: The system i s largely supply driven, although a sound TVET policy was developed during the first phase. The focus thus far has been on center-based training o f adolescents and young adults with little information regarding their chances for securing employment after completion o f their training. Almost 70 percent o f a l l TVET centers are in the three urban areas o f Dakar, Thiks and Saint Louis. Employment and labor market data are sorely lacking, making any evaluation o f the effectiveness o f this sub-sector difficult if not impossible. Several donors, including AFD and the Governments o f Luxembourg and Belgium, have provided support to the sector to improve the quality o f its training, and to improve the l i n k s i t has with the private sector.
vi) Higher education i s largely public, although the private sector i s growing with about 25 percent o f enrollments in 2005. The public system comprises the University Cheikh Anta Diop o f Dakar (UCAD) and the University Gaston Berger o f Saint Louis (UGB), although U C A D enrolls the vast majority o f students (43,000 out o f a total o f 60,300 estimated in both public and private higher education in 2005, comprising about 70 percent).
vii) Non formal education i s supported through diverse initiatives including those led by Government, donor and non-governmental organizations. In addition to a large literacy program for learners 15 to 49 years o ld that has support from al l o f these actors, this sub- sector includes basic community schools (&coles communautaires de base) for children 9 to 14 years o ld who either never entered or dropped out prematurely f rom general education. They are given access to a basic education cycle o f four years with a focus o n literacy in local languages and in French, and some vocational skills. Senegal also has a large number o f Koranic schools or daaras that primarily focus on teaching the Koran to children, although the types o f daaras vary significantly, ranging from those that provide academic and vocational skills in addition to the religious teachings, to those that exploit the children for economic gain.
v)
. .
A. Access
Enrollment rates in Senegal The most important gains under Phase 1 o f this sector-wide program were in the expansion o f access: gross enrollment in elementary grew from 65 percent,in 1998/99 to 82.5 percent in 2005. Girls’ education saw strong gains: girls as a percentage o f a l l students entering grade one reached over 50 percent in 2004, outnumbering boys for the first time, and the percentage o f girls in elementary went from 44 percent in 1998/99 to 48 percent in 2004, two points higher than anticipated in the program documents. Literacy programs, too, showed strong growth in enrollments while expanding o n public-private partnerships, and a record number o f learners, more than 75 percent o f them women, enrolled in and completed the literacy courses.
Access in rural areas presents its own set o f challenges. With gross enrollment at 80 percent, expanding access to the remaining 20 percent o f children out o f school while remaining within budgetary limitations wil l require considerable effort. The employment o f different pedagogic methods (such as multigrading) will be important in rural areas, where many if not most out-of-
22
school children live; the expansion o f schools offering other languages o f instruction (including Arabic) may yield important results in certain areas resistant to the “modern” French schools. Demand-side efforts may also be needed in areas where the opportunity cost o f education i s higher than the immediate benefits to the household.
School infrastructure In elementary: School infrastructure in Senegal i s poor in general. An assessment done in 2005 o f the construction conducted during the f i rs t phase o f the program showed that: (i) the gap in latrines for the new elementary classrooms built during Phase 1 i s estimated at 6,853 boxes (87% o f the need) and; (ii) the various types o f and norms for latrines at the school level need to be updated. This situation highlighted the lack o f an adequate Government strategy for ensuring a minimum physical package for each school. Wherever local governments and community-based organizations were involved in the planning and implementation o f their basic services in education, the school environment was found to be much better. Since the number o f elementary school children will continue to increase during the second phase, the need for additional elementary classrooms i s expected to reach 2,700 per year, including 2,400 new classrooms to cover the demand for new places, and 300 to replace existing classrooms that cannot be rehabilitated. The importance o f having adequate sanitary and water facilities not only to assure a hygienic environment for a l l students, but also to keep young girls in school, has been well- established.
In middle schools: Since 2002, the growth in middle school enrolments has been accelerating: student enrollments increased from 277,106 in 2004 to 31 1,863 in 2005. The increase in the number o f middle schools was primarily in the public sector (3 13 coZZ2ges in 2004 to 427 in 2005). However, this increase i s more a result o f the opening o f “new” schools in temporary structures financed and built almost entirely by communities using local materials, or in rented buildings ill-adapted for use as schools. This situation is due to the l imited investment by Government in this level o f education, and the relatively few donors involved in the sub-sector.
Construction to move to “school” versus “classroom” approach: In the first phase, al l actors involved in construction, including Government, had an approach that favored the classroom over the school; therefore, rather than considering the school in its entirety, a l l development projects constructed classrooms. This, in turn, contributed to the fact that there i s a gap o f more than 6,800 latrines nationally, as projects tended to focus their resources o n building latrines for the new classrooms they created (if at all) rather than in cansidering the school as a whole, existing and new classrooms included. Under the second phase, not only will IDA complete a number o f schools where latrines and water points are lacking, but it will maintain a “school” approach in al l new constructions, where the school would contain, at minimum, academic and administrative blocks, and latrines and water points, even in those existing schools where only a few new classrooms are built. In addition, the Ministry o f Education will need to review technical norms and designs options for latrines, emphasizing low-cost and sustainable techniques, and including modifications that would enable children with physical disabilities to have access.
Regional differences in access have both an economic and a gender dimension: The table below shows the differences between the various regions in Senegal, both in terms o f total enrollments and in girls’ enrollment. In terms o f total enrollment, the regions o f Diourbel,
23
Kaolack, Fatick and Louga have the lowest rates; interestingly enough, three o f these regions (Diourbel, Fatick and Kolda) have as many or more girls than boys enrolled. In terms o f gender inequity, Kolda, Louga and Tambacounda stand out as having the fewest girls for the number o f boys enrolled.
Source: Annuaires de statistiques scolaires, divers numkros, ME/DPRE/BSS (as cited in Rapport Econ. et Finan, 2005)
Demand i s growing for access beyond elementary. With the rapid growth o f enrollment at primary, and the efforts underway to suppress and ultimately eliminate repetition and dropout at that level, the challenge for the next five years will be satisfying the growing need for places in middle and high schools. Middle school enrollments have grown significantly in recent years, with urban areas disproportionately benefiting f rom the creation o f new places. As the system expands, and as Government moves forward with i t s plans to have a basic education cycle of 10 years, the strain on the budget will be considerable. The increase in school places in middle schools (colliges de 1 'enseignement moyen or CEM) should not come at the expense o f elementary enrollment.
24
Source : Rapport Economique et Financier, 2005 (which cited Annuaires de statistiques scolaires, ME/DPRE/BSS)
The case of literacy Under the f i rs t phase o f the IDA project, important innovations were introduced, including the outsourcing o f the actual service provision through the use o f private-public partnerships for the financing and delivery o f literacy activities. The IDA project supported the identification and the financing o f private and NGO operators that delivered al l literacy and post-literacy activities, and set up a monitoring and evaluation system under the Ministry to ensure that the courses were taking place as planned. Under the second phase, this approach wil l be further refined to ensure that the operators are fully responsive to the demand, and are delivering courses o f adequate quality. This wil l take place within the context o f a review o f Government’s own strategy, as it aims to merge the many, diverse literacy activities currently being implemented into a comprehensive strategy, putting the local governments, and particularly the rural communities, at the heart o f the approach. This strategy aims to: 0
0
0
0
0
Eradicate illiteracy while improving the quality and relevance o f the courses offered; Promote local languages in official and public life, at school and in vocational training; Strengthen the leadership and management o f literacy and local language programs both within and outside the education sector; Improve financing o f literacy and local language programs; Improve communications and social mobilization.
Lessons learned from past experiences: There have been important improvements in literacy in Senegal, with the rate o f ill iteracy declining regularly, passing from 64 to 46.4 percent ten years later (72.7 to 52.6 percent for women over the same period). However, there have been weaknesses in the implementation o f the program, which Government aims to address in this phase. The lessons related to those weaknesses are: 0 The target audience i s not always the one that comes forward for courses; in fact, there i s
considerable evidence that a significant share o f the demand comes from those who have participated in literacy courses before); Objective criteria have not been defined to identify priority zones; this has meant that the efforts o f the private operators were not wel l targeted;
0
25
The literacy animators were not always selected with a specific prof i le in mind, and the instructors were found to be unmotivated; nor were they sufficiently we l l trained; Operators were at a specific site for a short period, which did not enable them to have a real impact o n the overall literacy rate in that region or o n the transformation o f the behaviordattitudes in order to create a literate environment; Monitoring and evaluation were irregularly done, and oversight o f the programs was insufficiently conducted by the operators and by the education ministry officials at the region and district levels; Local governments are hardly ever involved in the management o f the program; this is also true o f local communities; yet, these are the most important local actors for literacy improvement. There are few objective criteria to measure the ability o f the operators to fulfill the requirements o f their contracts, or to sanction those that have not done so.
Teachers in Senegal
Before the introduction o f the contractual teaching corps (also called volontaires and maitres contractuels in elementary and vacataires and professeurs contractuels in middle schools) in 1994, al l teachers were c i v i l servants, and received relatively high wages and other benefits. Given the challenge o f reaching EFA by 2015, the prevailing wages could not be maintained; nor could the system afford to provide the number o f years o f training to i ts new elementary teachers. During the first phase, therefore, several alternative teacher corps emerged: Contractual teachers in elementary (volontaires de 1 'education nationale and then maitres contractuels) and in middle schools (vacataires who then became professeurs contractuels) quickly grew to become essential actors in education provision. Under the new alternatives, a l l elementary teachers were hired as volontaires, who became maitres contractuels after two years. Both categories were st i l l contractual teachers, and their wages were significantly below those o f c iv i l servants. After four years, contractual teachers in elementary could pass an examination that qualified them for c iv i l service status, though this transition was not guaranteed. Instead, each year Government would agree with unions o n the number o f new c iv i l service positions that would open for this category, within the parameters o f its macro-economic environment, and that would determine the number o f contractual staff who would enter the c iv i l service. At the middle school level, new entrants were hired as vacataires, paid o n an hourly basis to cover the number o f hours they taught. They can enter the c iv i l service primarily by entering the teacher training institution (Ecole Normale Supbrieur).
During the period 1997-2003, the number o f teachers in the public school system increased on average by 8.4 percent annually, from 16,705 to 27,615, with the share o f volontaires and vacataires growing rapidly. The simulation model estimates that, o f 52,410 teachers needed in elementary in 2014,60 percent would be contractual teachers (as compared to the current 43 percent).
26
Table: Distribution of teachers in primary according to category 1 1997 I 1998 I 1999 I 2000 I 2001 I 2002 I 2003
Civil servants in elementary Instituteurs I 7884 I 7545 I 7732 I 7441 I 7780 I 7527 I 8064
Instituteur Adjoint 1 5079 I 4776 I 5716 I 5244 I 4567 I 5352 I 6581
Source: Ministry documents and Rapport Economique et Financier, 2005
2005 2006
Table: Projections of teacher numbers according to category (2003-2014)
5850 9585 1 7706 8141 I 31282 5675 11797 I 8252 8178 I 33902
Inspecteur
Source: Modele de simulation
2444 I 2503 I 2563 I 2563 Inspecteur adjoint
27
1888 I 1934 I 1980 I 1980
increase in in-service support was not seen. Currently each region has an EFI, which permits the recruitment o f at least 3,500 contractual teachers annually. In-service training is provided at the regional level, as well, under the regional training entities called PGZes rbgionaux de formation or PRF. There are important efficiency gains to be made by coordinating the work o f the EFIs, which have students only for six months out o f every year, and the PWs, which have skilled personnel and transportation means but no physical space. A new comprehensive Regional Training Center concept i s being developed by the DRH and the relevant ministry directorates, and the IDA project wil l support the reforms necessary to put this into place.
Quality of teachers: In Senegal, although little empirical evidence exists with regard to the quality o f teachers, when looking at student learning outcomes, i t i s clear that the instructional process is seriously impaired. Although actual time on task has not been measured, even simple calculations show that instructional time (i.e. time when schools are actually in session) is severely limited due to frequent school closings and teacher absenteeism. Most importantly, teachers do not appear to have adequate mastery o f basic content areas including math, science, and French; moreover, school visits show a lack o f pedagogical knowledge among new and existing teachers. Many o f them teach as they have been taught, and are not using student- centered approaches in their classrooms. With some notable and encouraging exceptions, teaching in Senegal can be characterized as an approach to student instruction that i s teacher- dominated, mechanical, unduly repetitive, and overly concentrated o n rote learning and literal recall o f information; and a teaching style that tends to treat students as passive imbibers o f information rather than as active problem solvers. Therefore, the focus in the teacher training institutions during the second phase will be on content and pedagogy that includes active learning and student-centered methodologies.
B. Education quality
Education quality, though slowly improving, continues to be low as measured by both national and international assessments. During the f i rst phase, student learning outcomes in reading and mathematics was among the lowest in the sub-region as demonstrated by the continuously poor performance in the PASEC assessment o f Francophone countries. The national assessment (SNERS, 2002) showed similar results: in French, the desired mastery level (75/100) was reached by only 11 percent o f fourth graders; in mathematics, only 12 percent reached mastery level. The minimum acceptable level (50/100) was reached by 52 and 56 percent o f fourth graders in French and Mathematics, respectively.
Data on access and repetition paint a worrisome picture. A s the table below illustrates, repetition i s a problem across the entire system, with the rate increasing as the students approach the high-stakes examinations at the end o f each cycle. This calls into question not only the quality o f instruction that the students are receiving, but the quality o f the assessments that are used to make such an important decision. In fact, recent studies have shown that the system is sadly lacking in both these aspects: not only do the national assessments indicate l o w scores in both French and mathematics as discussed above, but it has been shown that (a) students who repeat are not necessarily worse than those who pass; and (b) those who pass to the next grade reap greater academic benefits f rom being in the higher grade than students who repeated.
28
Source : Annuaires de statistiques scolaires, divers numkros, MEIDPREBSS.
A number o f activities have been implemented under the first phase to improve education quality: the first o f these consists o f a block grant program for improving education quality, with district and region-level quality action plans developed with inputs from key stakeholders at those levels, and directly financed through accounts managed by regional accountants. A total o f FCFA 1.7 bi l l ion (approximately US$3.4 million) was allocated for these activities in the IDA credit under the f i rs t phase.
Second, school committees have put together their own school quality improvement plans. Under the first phase o f the PDEF, approximately 1,500 school plans (projets d'e'cole orprojet d 'e'tablissernent) were financed overall, with approximately 1,000 financed under the IDA credit during the 2004-2005 school year at a cost o f $3,000 per school. These plans, together with the small block grants to the deconcentrated levels mentioned above, have been effectively implemented from a financial monitoring standpoint, and the internal (Government) evaluation o f their outcomes appears positive. An external evaluation i s planned immediately after the start o f the school year in October 2006, which would examine critically the procedures o f preparation, implementation and monitoring o f the grants while at the same time identifying the strengths and shortcomings o f the procedure and provide suggestions for improvement; and assess the role o f the school grants in the improved mobilization o f communities and school partners at the local level. If possible, the evaluation will also analyze the impact o f the grants on the pedagogical methodology and school environment.
Third, central level government officials are increasingly playing a catalytic role, providing assistance to local teams in the elaboration and monitoring o f these quality plans, rather than writing al l o f these plans themselves and attempting to implement them from Dakar. This has required important behavior change in the top-down culture o f the education hierarchy, a key element in the process o f managing change and reform in the sector.
29
Finally, the Minister and his cabinet are sharing information about the allocation o f financial and logistical resources to the deconcentrated levels during their regional community meetings (called CRDs) to ensure that these officials are held accountable by local communities for the results they had promised to deliver. Our expectations regarding this exercise remain modest - it is only the first step in effecting behavior change in the decision-makers so that they can respond directly to the needs at the school level, a process that i s likely to take years to fully mature. The new project will, however, support the block grants for the coming three years, each year using the external evaluations to fine-tune the instrument.
Instructional time i s low, further exacerbated by the lack of effective monitoring and management at school levels. A recent study in Diourbel showed that, for every three years taught in schools, students lose an entire year o f instruction due to late school openings, absences o f teachers, lengthy school closures for holidays beyond the legal number o f days, and premature school closings. This last phenomenon i s the most egregious: although schools are supposed to remain open until the end o f July, many close by end-May and al l others are closed by midJune at the latest. Therefore, on average, students lose anywhere from four to eight weeks o f instructional time at the end o f each school year not counting other significant losses due to the other reasons mentioned above.
Learning materials are both inadequately resourced and inappropriately used: Government and donors, including IDA, have provided some support for the purchase and provision o f learning materials, though never quite enough to attain the ambitious goal o f 3 textbooks per child. Therefore, the textbook:student ratio in elementary, which had reached 2.15 at the highest point in the f i rs t phase, is now at 1.9. The new target for the second phase is to reach 2 textbooks per chi ld in the first two grades o f elementary (CVCP) and then to have a 5: 1 ratio for the remaining years in elementary and middle schools. But this solves only ha l f of the problem; in those schools visited by missions over the years, those that had textbooks rarely used them effectively, often preferring instead to keep them in good condition in the storage units at the school level. The project will ensure training for, and verification of, effective use o f textbooks in classrooms.
Curriculum development has been an ongoing process for the past 10 years: Although the process appears to have finally found its rhythm, even under the most ambitious planning process it is clear that the full elementary cycle will not have the new curriculum in place before 201 0. In the meantime, district and regional education officers have begun to provide training for teachers on how to adapt the existing curriculum and learning materials to achieve a set of priority curricular goals. The IDA team will support this process, placing primary emphasis on reading as the most important factor that wil l determine whether or not a chi ld can learn effectively.
C. Education Management The Ministry o f Education is the primary governmental body responsible for the implementation o f educational policies and management o f the education system through directorates .
corresponding to the different sub-sectors: Pre-school Directorate (DPE), Elementary Directorate (DEE), the Middle and General Secondary Directorate (DEMSG), the Local Languages and Literacy Directorate (DALN), the Higher Education Directorate (DES), to name just a few. Since 2005, the Ministry o f Education shares i t s responsibilities with the Ministry o f
30
Technical Education and Vocational Training, which has been established as an independent ministry. In addition, there are two Cabinets o f Delegate Ministers under the Minister o f Education, one in charge o f literacy and national languages; and the other o f pedagogic issues. The administrative, technical, and financial management o f the education sector is ensured by the Planning and Educational Reform Directorate (DPRE) for overall planning and technical coordination, and by the General Administration and Equipment Directorate (DAGE) for al l matters to do with financial management and procurement.
The regional education structures or inspections d 'acadkmie (IA) are charged with the management o f activities at the regional level (1 1 in total), and the district education structures or inspections dkpartementales de 1 'kducation nationale (IDEN) at the district level (44 in total). The I A have overall responsibility for the IDENs as wel l as for the training institutions that do pre-service training for elementary school teachers, called Ecoles de la Formation des Instituteurs or EFI, and in-service training, called Pdles rkgionaux de formation. In addition, they have oversight over al l middle and secondary schools. The IDENS are responsible for providing support to schools, and recruiting contractual teachers for vacant positions. They are closely involved in the site selection for new schools, and serve as the technical advisors to the local governments on matters to do with education.
At the school level, school directors are responsible for managing schools, including personnel, financial and pedagogic management. They report directly to the IDEN for pedagogic matters and to the I A for administrative issues. Schools usually have management committees (comitks de gestion de 1 'kcole or CGE), comprising representatives from the school staff, parents, and community members, and in charge o f financial management o f the funds collected from parents and communities, or sometimes even from non-governmental or donor organizations. The Parents' Association (Association des Parents d %lives or APE) serve to strengthen the l i n k s and cooperation between the schools and families. They are advisory bodies with an important fund- raising role at the school level, and the level o f their involvement varies. The roles o f the CGE and the APE overlap enough to create tensions in some areas, as the former include members from the school and the community that the latter normally does not include.
With the implementation of the Decentralization Law of 1996, the education system needs to prepare for smooth decentralization to the local level. An important first step has been taken by Government through the allocation o f a share o f the investment budget to local governments in the 2006 Loi des Finances, giving them the responsibility for the construction o f primary school classrooms in four test regions. This needs to be matched both with greater capacity building at al l levels, and with greater effective decentralization o f responsibilities and resources, both human and financial. The biggest hurdle to this test has been the need for the revision o f legal texts to enable local governments to receive funds for these activities. By June 2006, the revision had not been concluded, and the funds had not been deposited into the local government accounts. Given the difficulties related to building during the rainy season, which starts in June in most areas, and given a minimum o f five months is needed to conclude the simplest school constructions, i t i s unlikely that the additional classrooms would be ready in time for the October school start.
Human resource management i s weak in a sector that has one o f the largest wage bills in Government. After almost three years o f continuous discussion on the issue, the Minister named
31
a Director o f Human Resources about a year ago who has put together an ambitious action plan to solve problems of, inter alia, (a) poor coordination and personnel data tracking between the Finance, Education and C iv i l Service Ministries; (b) outdated information regarding the number and location o f personnel in the education system; (c) uneven deployment between rural and urbdperi-urban areas; (d) perverse incentives for addressing the education system's needs, as evidenced by the imbalanced distribution o f scarce c iv i l service positions. A first, important task concluded has been a cleaning o f the teaching rolls, where ghost teachers have been identified and their salaries suspended.
Monitoring and evaluation: Data collection and sharing showed enormous improvement, with the data unit (Cellule informatique du Ministire de 1 'Education or C1.Q representing one o f the success stories in the sub-region with regard to data collection and capacity building in information technology. The system for registering new schools and for ensuring accurate reporting across both public and private schools remains weak; in a recent report, i t was noted that the Div is ion o f Examinations listed more schools than was recorded by the Ministry. Two years ago, the enrollment figures for Dakar had to be corrected v ia a physical audit to include a
, number o f small private schools that had opened, but whose numbers were not adequately captured.
Overall Spending The overall allocation for education continues to improve as demonstrated by the increasing share o f education expenditures. Budget resources for education are not lacking but allocations are uneven. Government allocates more that 30 percent o f i t s recurrent budget for education3, and o f that, around 44 percent has been devoted to primary education. The second highest allocation within the sector i s for higher education, which received 27.4 percent in 2004 not including mid-year budget resources that are often added. The middle school level is the hardest hit, dropping to 7 percent in 2004 (down from 13 percent in 2001). With the growing demand for middle school places, and with Government committed to ensuring equity in access, this position favoring higher education over middle schools i s unsustainable.
Funding Sources In Senegal, the Government i s the largest financier in education. Funding sources for the education sector include the national budget in addition to funds from local governments, households and external donors. The budget finances more than 75 percent o f al l expenditures education, as shown in the table below.
Calculated as recurrent budget minus debt service. 3
32
Source : BSS, DPRE, ME, 2005.
Total Gov recurrent spending Gov recurrent expenditures net of salaries and transfers
The quality of the expenditures in education shows some important weaknesses. As the table and graphs below show, although the state provides a large share o f the total spending to the sector during the f i rst phase, when salaries and transfers (including scholarships) are taken out, it only provides 50 percent o f the financing for quality inputs, the other 49 percent of which was financed under donor programs.
Total recurrent spending net of salaries and transfers
of which donors 8,224 10,608 4,607 11,447 14,322 23,177 72,386 27% 61% 29% 33% 55% 58% 49%
100,000,000,000 &d
0-
50.000.000.000
2000 2001 2002 2003 2004 2005
Depenser r e c u r r e n t e s - I 'Etat SOn6gala iset I esPTF ( 2 0 0 0 - 2 0 0 5 )
+ Cepensmsrecurredw flnacearipsPTF
16,ocO,oW,oM
14,oD3,DX).mO
izm,m.m
33
Efficiency in spending on education Although the resources in Senegal are not lacking, efficiency o f spending i s o f major concern. During the first phase o f QEFA from 2000 to 2005, the situation worsened over the years. In Senegal, the average duration o f schooling (6.7 years) was generally below the average (8 years) for the 13 other Afr ican countries tracked during that period (see Table 9.7 in Annex 9). Yet public expenditure o n education as a percentage o f GDP was relatively higher in Senegal (4.9 percent) than the average for the other countries (3.8 percent). This situation resulted in a lower index o f total efficiency, defined as the average duration o f schooling divided by public expenditure o n education as a percentage o f GDP: in Senegal, the index o f efficiency was 1.35, the lowest indicator o f total efficiency o f a l l o f the countries listed in the table but Zimbabwe (0.88) and Niger (1.21). N o t only that: Senegal became less efficient between 2001 and 2005, as evidenced by the index declining from 1.61 to 1.35 over that period.
A sectoral Medium Term Expenditure Framework (MTEF') has been prepared for 2006, which outlines the sector objectives for the entire country, with baseline and target values identified for each regional and district. The MTEF was the culmination o f a process which began with the development o f local education plans at the district levels (PDDE), which were incorporated into the regional development plans (PIWE), Using the overall budget envelope provided by the Ministry o f Finance and Economic Affairs, the education teams set out, with their Finance counterparts, to define priorities and assign budget envelopes for each region and each budget objective, which resulted in a national MTEF for the sector. Although the 2006 budget did not take the education MTEF h l ly into account, a considerable amount o f time was spent with technicians in both Ministry o f Education and Ministry o f Finance sharing information about this instrument. There i s agreement now that Finance will use the MTEF in upcoming budget preparations in 2007, and that Education will continue to improve the instrument to make it more user-friendly. The IDA credit will be financing activities that wil l enable the Ministry o f Education to update i t s MTEF each year in a rol l ing budget planning process.
34
Annex 2: M a j o r Related Projects Financed by the Bank and/or other Agencies
SENEGAL: Quality Education for All Project - Phase 2
Overall Bank lending to the education sector in Senegal consisted o f 8 IDA credits in the past 35 years, totaling $213 million. The last project in the education sector in Senegal was the Quality Education for All, APL 1($50 million) which closed on December 3 1 , 2005. The objective o f the project was to ensure that the framework for quality universal basic education i s in place, i s effective and ready for national implementation. I t included construction o f primary school classrooms, small school improvement grants, pi lot programs for reading, introduction o f national languages into the formal education system, assessment o f student learning, personnel management and decentralized planning. All the education projects implemented in Senegal since 1971 have been rated by the Bank’s Independent Evaluation Group (previous OED) as satisfactory. The table below illustrates the issues and results o f closed education projects within the last six years.
There i s a lot o f donor activity in the education sector in Senegal. The main donors include Afr-ican Development Bank, Canada, France, the Grand Duchy o f Luxembourg, Islamic Development Bank, Japan, UNICEF and USAID, to name a few.
35
PAM
USAID - PAEM
1 TOTAL I 112440447112 I 50,61% I I I
10183268 150 68,22% 31/12/2006
8 450 125 750 46,56% 3 1/05/2008
36
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Annex 4: Detailed Project Description SENEGAL,: Quality Education for All Project - Phase 2
The proposed objective o f this phase o f the APL is to improve teaching and learning practices in the classroom in order to assist the Government in improving education quality while maintaining i ts focus o n reaching universal primary completion by 2015. The project would do this by: (a) improving both access and retention by expanding the number o f middle school places in the system, improving conditions in existing elementary schools, and by supporting additional literacy courses; (b) improving education quality, with a focus on elementary education; and (c) strengthening management at central, deconcentrated and decentralized levels to ensure attainment o f PDEF objectives.
Component 1: Improving access and retention. Under this component, the project aims to address issues directly related to access and retention. First, i t will complete existing elementary schools currently lacking in toilet facilities and/or water points, to ensure that children, and especially girls, are provided with an acceptable learning environment; second, i t will build new middle schools to address the increasing demand for places at that level; finally, i t will provide literacy courses for rural populations who are disproportionately represented among the illiterate in Senegal, and especially for women, whose own success would further support family literacy.
The proposed strategy for middle-school construction will bring together three important partners in the financing: the Government, U S A I D and IDA. Each partner will use the same standard plans for the construction o f the rural coZZ2ges, and for each establishment that the two donors build, the Government will ensure that i t builds an additional collkge. Local governments and communities would contribute connections to utilities (as under the PAEM Classe projected financed by USAID), and the routine maintenance o f the structures. The details would be described in the Project Implementation Manual.
The project would support the following sub-components:
Bringing elementary schools UP to standard: Construct a total o f 170 water points and 300 six-toilet blocks in existing elementary schools, giving priori ty to schools where IDA projects built classrooms in past years.
Construction o f new middle schools (coZZ2aes de I 'enseipnement moven): Construct a total o f 28 new middle schools in rural areas, each consisting o f two 2-classroom blocks, an administrative block, a library/multipurpose room, two 6-toilet sanitary blocks and septic services; a wal l fence, a guard room, and a water point.
Literacy courses for rural populations: A total o f 50,000 learners between 15 and 49 years o f age, at least 70 percent o f whom would be women, would be provided with literacy courses. The revised strategy for implementing this component is outlined in Annex 4 and wil l be implemented under this project.
Supporting activities: Training o f school personnel, students, and communities will be conducted under the project to foster sanitary awareness, promote environmentally
42
friendly schools and reduce maintenance costs. All schools would be designed to provide access to disabled students, with classrooms equipped with ramps and at least one latrine made accessible. Under the PNDL project, which has already been approved and i s set to start implementation in late 2006, training would be provided to local governments to strengthen their capacity for implementing works and supporting maintenance at the elementary schools level.
Implementation arranpements for Access component: (a) Elementary construction: The local governments would have overall responsibility for the
management o f construction activities at th is level. The Ministry o f Education at central and decentralized levels wil l be involved in the technical aspects o f implementation. The detailed implementation plans will be described in the Project Implementation Manual but the following gives a br ie f overview:
(i) Expressions o f demand would come from schools (through Parents’ Associations), local governments, and communities
(ii) The final selection o f schools to be upgraded wil l be determined by the DPRE and 1.4, with the DAGE involved in the setting o f the budget;
(iii) The local governments will be fully responsible for the remaining works, and have the possibility o f securing technical assistance if they need additional technical expertise (from a delegated contract management entity or NGOs, or from the A R D s once they are in place under the PNDL). The DCES would be involved in the supervision o f the overall c iv i l works program and would be in charge o f the technical reception o f the structures from the contractors at the end o f the construction.
(iv)
(b) Middle school construction: The DPRE would be responsible for overall programming and monitoring o f the construction activities. Under guidance from the DPRE, each directorate wil l have the responsibilities as follows: The DEMSG would: (i) prepare and update, as required, the construction program, including the site locations and phasing; and (ii) establish requirements and criteria for site selection and a database with up-to-date information on enrollments and classroom needs. The DAGE would be in charge o f procurement and financial management. The DCES would be responsible for the study o f norms and standards, for the elaboration o f technical specifications, and for the monitoring o f a l l construction activities. The DCES will assist the DAG& in the bidding process. Due to the shortage o f qualified staff at this level, the project will hire a consultant to reinforce the capacity o f DCES staff, The detailed implementation mechanism will be described in the Project Implementation Manual.
The case of literacy: The specific objectives o f the literacy sub-component differ f rom those traditionally associated with the expansion o f access, and merit particular attention. The objectives are to improve the quality, relevance and effectiveness o f the literacy courses offered and to develop capacities for leading and managing the sub-sector, with improved coordination between al l the key actors.
43
The implementation arrangements are as follows:
Demand-driven process: Rural communities would be at the heart o f the process, which would be based not o n the supply o f operator courses but o n the effective demand in the population. Each rural local government authority (communaute' rurale and commune, conseil municipal or conseil rural) would establish a list o f villages and towns where literacy i s o f greatest priori ty (Le. where there are at least 100 illiterate persons. The villages would be classified into groups o f 10 based o n a manageable geographic distribution (this work would be led by the Education Commission within the Conseil Municipal or Rural at the district level as wel l as by the IDEN). The IDEN would conduct a local study (e'tude du milieu), which would be used to prepare a bid that establishes more precisely the demand for literacy courses in those 10 villages, which would be considered sub-projects. All pre-qualified operators in that area would then be able to compete and bid o n sub-projects for that group o f 10 villages.
Clearly defined roles: The Conseil Municipal or Rural would be responsible for : identifying the demand in each village/town; chairing the General Assembly for the creation o f management committees (comite' de gestion des centres d 'alphabetisation); participating in the evaluation o f requests, and maintaining oversight over the implementation o f the activities. They will also maintain a local database, manage the Government budget allocated for literacy courses, mobilize outside sources o f financing, and provide clearance for the operators to be paid based on the fulfil lment o f services attested by the community. The detailed technical and administrative aspects o f their tasks would be handled by a local implementer (ope'rateur-relais), a private sector operator who answers to the Conseil (see Activity 2 below).
Revision in the process for operator selection:
(i) Pre-qualification: a l l operators would present dossiers, to be verified by the technical services
(ii) Independent selection committee: Four literacy specialists would constitute the committee
(iii) Prequalification criteria: They would include past experience, past performance and implementation capacity
Use o f Government budget to strengthen capacity and monitor local prowams: Because of the particular l o w results under the Government's PAIS program, IDA would recommend that Government use i t s resources to better equip local governments to conduct monitoring and evaluation o f a l l ongoing programs in literacy, mostly financed by external partners.
Revision o f mechanisms for managing literacy prowam: Government and A C D I are currently discussing the creation o f a National Education Resource Center (Centre National des Ressources Educationnelles or CNRE), which would take on the role o f a delegated management agency for literacy activities. Once that center i s operational, the coordination o f monitoring and evaluation would be handled by it.
44
The activities planned under the IDA project would be the following:
(a) Setting UP o f a comprehensive literacy propram: With the creation o f the above- mentioned CNRE, the existing unit for monitoring/evaluation (the Cellule de Coordination et du Suivi or CCS) would be integrated into the CNRE, ind the monitoring and evaluation activities would be conducted by the CNRE. To strengthen the capacity o f the Center, IDA would finance operating costs including the services o f an expert.
Strenahenina the implementation capacity by financing opbrateurs-relais, who would assure the technical and financial monitoring for al l o f the sub-projects in a particular region. The opbrateur-relais, o f which there would be a total o f 5 for each o f the five regions where the project will have activities, would conduct technical and organizational audits o f the operators in each region, set the actual training needs, organize the training o f facilitators, provide monitoring and follow-up o f administrative, technical and financial aspects o f the sub-projects, participate in the selection o f operators and authorize their payments, all under the direct responsibility of the Conseil. The opbrateur-relais would be selected using IDA procedures for the selection o f consultant services, with a selection committee comprising the DALN, the Association o f Elected Officials (Union des Association des Elus Locaux or UAL), donor representatives, the Cellule de Coordination et du Suivi or CCS), and the CNRE. The project would finance operation and transport costs and personnel charges for the opbrateur-relais.
Financing o f literacy activities: The IDA project would finance activities for 50,000 persons, 70 percent o f whom would be women, and including activities for the creation o f a literate environment through post-literacy activities. The project would also finance monitoring and communication costs for the CCS, the production o f reading materials in local languages, overall management o f the component by the CNRE or other delegated management agency, training seminars, and the process for the selection o f operators.
Capacity building: Training would be provided for local governments (the Conseils, the operators, and other local actors), in addition to the sharing o f experiences and good practices with an annual review bringing together al l actors. I t will be important to recognize excellent performance by granting regional prizes to operators that have conducted their courses effectively - this must go together with sanctions for those who have not fulfil led the terms o f their contracts.
(b)
(c)
(d)
45
Component 2: Improving education quality with a focus on elementary
The project would support the fol lowing sub-components:
Training of education actors, and strenetheninp assessment svstems: The project would support two levels o f activities: one at national level, focusing primarily o n the development o f training plans in l ine with national priorities and responsibilities, and the monitoring and evaluation o f these activities. The second, at regional level, would consist o f supporting the implementation o f the regional training plans (plans acade'miques de formation or PAF), which respond directly to regional and district training needs in addition to those set at national level. In both cases, the focus wil l be the improvement o f instructional quality, and especially o f reading, in the classroom.
(a) At the national level: The project would support the provision o f learning materials directly to classrooms. Training for trainers, especially those engaged in nation-wide activities, would be financed under the credit (it i s eligible for support under the pooled find for capacity building). In addition, each o f the directorates charged with the training activities (including DRH, DEE, DPRE, DEMSG and DALN) would be provided with finds for monitoring and evaluation, and would be held accountable for results. Activities would include the provision o f textbooks, teachers' guides, reading materials and training for their effective use, especially to enhance reading proficiency. To the extent that the new curriculum is in place, the project would help ensure the materials are consistent with i t s goals. National communicatiodinformation campaigns will be launched to bring issues o f quality to the attention o f parents and o f the general population - again, with a focus on reading: i) Purchase of didactic materials: Sufficient to reach a textbook:student ratio o f 2: 1 in
C I and CP, and 5: 1 in al l other elementary grades. A total o f 3.1 mi l l ion textbooks, and 150,000 teachers' guides would be purchased for elementary. In collaboration with the Nordic Development Fund (Fonds Nordique de De'veloppement), the project would support the provision o f readers in local languages and in French (20 titles per classroom), for a total o f 800,000 readers. To meet the increase in demand in middle schools, an additional 200,000 textbooks and 5,000 guides would be purchased for that level. In total, this component would support US$8.4 mi l l ion worth o f inputs over the project period, $5 mil l ion o f which would be financed by IDA and $3.4 mi l l ion by Government. In addition, IDA would allocate $660,000 for training and observations to ensure the effective use o f these materials.
Development of training activities: Training modules would be developed at the national level to improve the utilization o f these materials, the actual implementation o f which would take place at the regional training centers. The training courses would include: initiatives to improve reading instruction and the provision o f pedagogic support to teachers at school-level, focusing o n learning assessment and remediation, as wel l as materials development, by using school heads and senior teachers, among other topics to be defined in the national and regional training plans. The training modules would also include leadership and management courses for school heads and inspectors at district and regional levels. The credit would allocate about US$1 mi l l ion for this.
ii)
46
iii) Examinations and assessments: Assessment instruments for national use would be developed and implemented in grades 2,4 and 6 (in l ine with the SNERS assessments done to date); in addition, elementary classroom formative assessment tools would be developed and included in the teacher training planned at central and regional levels. A total o f US$5 10,000 will be set aside in the IDA credit for these activities.
iv) Technical audit of materials delivered, and in use: To ascertain whether the number and type o f didactic materials purchased i s actually arriving in schools, and i s effectively used in classrooms, a technical audit will be done at the start o f the project, and again at the end o f the second year o f implementation.
Monitoring and evaluation: Resources will be made available to the central levels for the monitoring and evaluation o f the quality activities carried out in schools, with a clear reporting format and plan for next steps defined after each visit.
v)
(b) At the regional level: The activities in the PAF that relate to improved instructional quality, and in particular improved reading proficiency, would be supported by the project. Priority would be given to those regions that have conceived their plans with quality improvements in mind, including indicators measurable within the three-year implementation period o f the project. Each PAF will be expected to include: (i) training on the use o f learning materials, especially the readers (as noted in (a) above); (ii) training for school heads, for inspectors, pedagogic advisers and teacher trainers at the 1.4 and IDEN levels (including at EFIs and PRFs), and for teachers at elementary and middle- school levels.
Execution of training for teachers in use of materials: IDA will allocate $12,500 (FCFA 6.3 million) per region per year to finance the PAFs developed by the regions. In addition, teachers in each region would be provided with training in the use o f learning materials (an annual training financed at $37,000 per year) -whi le the modules would be developed at the national level, the actual execution will take place at the regional training centers. In addition, IDA would allocate $10,000 (FCFA 5 mil l ion) per year per region for classroom observations to ensure, inter alia, effective use o f these materials.
ii) Execution of training for school heads, inspectors, and pedagogic advisers: Each region will be supported up to a total o f $25,000 (FCFA 12.5 million) in a block grant per year for three years for the training o f these education leaders.
iii) Execution of in- andpre-service teacher training: As outlined in the Government training strategy, one-third o f al l teachers would benefit from in- and pre-service teacher training, including an introduction o f the new curricula. Although IDA would support the development o f training modules for this activity, the actual training would be financed under a Government budget l ine to be included for ongoing training. The total estimated amount for this sub-component is US$1.7 mi l l ion o f which US$1.6 mi l l ion (FCFA 800 million) wil l be Government's contribution.
At the school level: Through the use o f block grants to schools (the projets d'e'cole in elementary and projets d 'e'tablissement in middle schools), schools would be encouraged to develop effective ways to reach the quality goals, including improvements in reading levels and support to teachers in classroom instruction, especially for new contractual
(c)
47
teachers. The project would continue supporting the block grants that had been launched during the first phase, with support going to schools for the financing o f their school plans for improving quality, and to IAs and IDENs for their regional and district quality action plans, respectively. More specifically, the project would support: i)
ii)
iii)
School sub-proiects (projets d 'e'cole et d'e'tablissement): 1,000 sub-projects in total at $3,000 (US$1.5 mi l l ion in total). IDA would require that Government allocate the budget for the same number o f sub-projects to be financed by the end o f the phase (Le. at least 330 each year for three years).
Action plans for IAslIDENs: Each I A and IDEN had developed i t s own action plan for resolving i t s quality problems. The action plans for 11 regions would be financed at US$3.4 million, 50 percent o f which would be financed under the IDA credit and 50 percent by Government.
Implementation training: To address a weakness noted in the first phase, the project would finance the training o f the local actors in the implementation o f the projets d 'e'coZe/d'ktablissement and in the IA and IDEN quality action plans (US$1 10,000).
Studies in post-basic education: Because o f their important impact o n the basic education cycles, both the vocational training and the higher education sub-sectors wil l benefit from more in-depth studies during the second phase. These studies wil l focus on: (a) improving the knowledge base with regard to efficiency, effectiveness and relevance o f these sub-sectors; and (b) support an open discussion by al l key stakeholders with regard to the strengths and weaknesses o f the current policies and strategies for these two key sub-sectors. The project would support: (a) Conference on higher education (iourne'es de re'flexion sur Z 'enseignement supe'rieur):
This conference would bring together a l l key stakeholders in the system, including public and private sector partners, students and community leaders, national and international experts, to determine the best way forward for the sector (US$lOO,OOO). In addition, IDA would provide experts f rom i t s own resources to provide background studies for this effort. Efficiency and relevance o f the current supply o f educatiodtraining in post-basic education (US$lOO,OOO) Books and other library materials for the University library (US$700,000).
(b)
(c)
Implementation arranpements for Oualitv component: (a) Didactic materials: The relevant directorate (DEE for elementary, DEMSG for middle and
DALN for local language classes) i s responsible for the selection o f books and reading materials, with technical input from INEADE. The DAGE would be responsible for the procurement and delivery arrangements. As agreed during preparation, a l l materials would be packaged for the individual school, and the relevant packages would be delivered to the IDENs who would contact the school directors and Parents' Associations for each school to arrange for pick-up o f their materials. Each school director would be responsible for the effective use o f the materials in the classroom. The DPRE would be charged with the monitoring and evaluation activities, and the IDENs would ascertain effective use o f materials by doing classroom observation in a randomly selected number o f schools each year.
48
Library materials: The materials to be purchased for U C A D would be identified by the University Librarian together with the appropriate procurement staff within the DAGE. Training: The DRH would be charged with developing the sector-wide training plan, but the education directorates (DEE, DEMSG and DALN) would have responsibility for the identification o f training needs at the national level, using the regional training needs assessments conducted by the IA. The Education and Training Faculty (FASTEF) would provide training for trainers and certification training for middle school teachers. The EFIs and the PRFs, under the responsibility o f the IA, would provide al l other elementary level pre- and in-service training. Action research would be encouraged as part o f the IDEN quality plans o f action (block grants).
Assessments and examinations: INEADE would continue to play a key role in evaluating the performance o f the system and o f learning achievements, with a particular focus on reading proficiency across elementary and middle school. In addition, the DEXC would be supported in its efforts to progressively reform the examinations system, starting with the two large national examinations, the CFEE and the BFEM.
Studies in post-basic education: Although the overall coordination o f these activities would be handled by the relevant directorates, the work would be conducted by external consultants (national and/or international), the selection o f whom would be handled by the DAGE.
Component 3: Strengthening management of the education system
Recent reports both f rom Government and from donor agencies highlight the weak capacity in the system for management and leadership. This i s related both to a dysfunctional organizational setup and to the lack o f clarity with regard to the results for which each directorate or unit is accountable. This component wil l finance activities that would directly address these two issues, and would help Government put into place a mechanism for continued improvements both in organizational setup and in performance monitoring. In addition to the issues o f management and leadership, there is continued confusion with regard to the two decentralization efforts currently underway: the f i rs t is related to the transfer o f certain competencies from the national to the local governments, including some related to the education sector. The second i s related to the decentralization o f certain budget functions from the Ministry o f Economy and Finance to the Ministry o f Education. Both o f these processes are moving forward sluggishly, leading to important delays in the implementation o f related sectoral reforms. With the ambitious education sector program set out for the next nine years, the education system needs to prepare for smooth implementation o f the activities, including those managed at the different levels: central (managed by central education directorates), deconcentrated (managed by regional and district education structures) and decentralization (managed by local governments). This calls for greater capacity for managing o f the considerable financial and human resources, and for monitoring the system, at a l l levels.
The project would support the fol lowing sub-components:
Support for results-based management: During the preparation o f the district and regional education plans (the PDDE and the I'It.DE, respectively), which ultimately became the
49
foundations o f the MTEF in education, annual action plans were developed by each o f the key directorates in the ministry. I t was understood that these plans constituted a contract o f sorts between the Ministry and the directorates: if the resources were put at the disposal o f the directorates, they would be held accountable, in turn, for the proper conduct o f the activities. This represents an important first step in the move towards results-based management, when the directors are held accountable for the proper management o f the inputs. The next step will be to ensure that these inputs are appropriately used to reach the expected oubuts and outcomes. This component, therefore, will support the Ministry as it transitions from an input-based system to one that i s managed by results.
Support for institutional reforms: The project would continue the work started under phase one by concluding the functional analysedaudits o f the Ministry, clearly identifying the functions being performed by the existing staff and structures. This would be followed by a series o f consultations, at the end o f which the Ministry would have clearly defined roles and responsibilities for a l l key actors in the system, and would subsequently make any changes necessary in the organigram. The project would finance technical assistance and training for the functional analyses as wel l as for the development o f the performance management frameworks (cadres de performance) for each o f the central and deconcentrated directorates or structures that would serve as commitments by the heads of those units (US$300,000). Recognizing that effective implementation requires adequate office and computer equipment, the project would also finance equipment upgrades (US$300,000). I t is not foreseen at this time that the project would purchase any vehicles.
Support for improvements in the management of human resources: The project would finance the continued implementation o f the Act ion Plan by the DRH, which aims to rationalize the effective use o f personnel in the system. The Plan has been further enhanced by the work that the DRH has done within the context o f the regional study of education management in Africa (Appui h la Gestion de 1 'Education duns les Pays Africains or AGEPA), which aims to ensure that the human and financial resources allocated to education are effectively transformed into results on the ground. This sub- component would support training and technical assistance to the DRH (US$lOO,OOO).
Support for budgetary reforms related to the MTEF: In l ine with Government commitments both under the PRSC and in this project, the decentralization o f decision- making from the Ministry o f Finance to the Ministry o f Education will continue. In order for that process to be conducted with the appropriate care, involving both national actors and international expertise, the project would finance the process, and any training necessary (US$lOO,OOO).
Support to improvements in data collection and analysis: A key element o f this project i s the development o f robust data management systems and, more importantly, to use those data to inform decision making by policy makers. To further strengthen the production o f accurate annual statistics in the education system, and to continue the work o f the f i rst Informatics Master Plan (Sche'ma Directeur No. I ) so that those applications related to student and teacher records are completed, the project would finance:
i) Annual statistical campaigns: To be conducted for both the Ministry o f Education and the Ministry o f Technical Education and Vocational Training (US$300,000)
50
ii)
Support for enhanced communications both within the system and with key stakeholders: In order to share, in a consistent and transparent manner, information with actors within the system, and with key stakeholders in the country, the project would finance:
Development of applications at the CIME: Those applications that were not concluded at the end o f phase one would be financed (US$200,000).
(e)
i)
ii)
iii)
Community surveys: These surveys or scorecards would be done annually, and would permit parents, students, and community members to provide feedback to the system with regard to the system’s performance. This information would be used to provide information with regard to the achievement o f the commitments made by the Ministry in the performance management frameworks (cadres de performance) (US$ 1 80,000).
Media communications and education newsletters/bulletins: The project would finance the use o f a l l media, particularly those readily available at the community level (e.g. local language papers, community radio), to share information about the objectives set for and the performance o f the system, and to promote the key messages o f the PDEF. A bulletidnewsletter for education would also be launched. (US$180,000)
Central ministryfield missions: As its contribution into the effort, the Government would provide adequate budget so that the Minister and the central ministry directors would conduct their annual f ield missions to listen to local stakeholders and provide timely feedback. This activity would be funded by the Government budget.
Implementation arranpements for Management component:
As in al l other components, the DPRE would be in charge o f the overall planning, and the DAGE with the financial management and procurement arrangements.
With regard to the development o f results-based management, the DPRE would be the overall coordinator o f the institutional reform and the development o f the performance management frameworks, and the DRH would provide technical inputs. The DAGE would have overall responsibility for the budget refonn/MTEF activities. The DRH have overall responsibility for the human resource management activities. The CIME would take the lead in the continued development o f the computer applications (applications de gestion), while the DPRE would be in charge o f the statistical campaims, and would coordinate with the DPRE f rom the METFP for the TVET data collection effort.
The community surveys would be conducted by national consultants, and their results would be incorporated into the annual reports developed for the sector. The communications activities would be coordinated by the DPRE at national level, and by the IAs at the regional levels.
The studies and conferences in post-basic education wil l be conducted in l ine with IDA procedures, with the DPRE and DAGE handling the planning and procurement arrangements, and the relevant directorates providing technical inputs.
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Annex 5: Project Costs SENEGAL: Quality Education for All Project - Phase 2
N.B. This table includes the IDA credit (US$30 million), the Japanese PHRD Co-financing
A.
B.
C.
Grant (US$4 million), and Government contributions to the project (about US$51.6 million). Total us $
million 15.6 6.7 22.3
Construction o f middle schools 9.6 5.3
Literacy support 3.6 0.0
Block grants to schools and local education structures 4.9 0.0
Training o f teachers and strengthening assessments 35.6 0.0
Studies in post-primary education 0.2 0.1
Improvements in human resource management 0.3 0.0 Improving communications and monitoring and 1.2 0.0
Bringing elementary schools up to standard 2.3 1.4
Improving education quality 45.3 6.0
Provision o f didactic materials 4.4 5.5
National assessments and examinations 0.1 0.4
Improving management 2.9 0.4 Support for results-based management 1.3 0.4
evaluation D. Operations and maintenance 3.1 0.0
Operating costs, including salaries for contractual staff 3.0 0.0 Preparation for next phase 0.1 0.0
Total Project Costs' 69. 16.1 'Taxes are not included in this cost table.
14.9 3.7 3.6
51.3. 4.9 9.9
35.6 0.5 0.3 3.3 1.7 0.3 1.2
3.1 3 .O 0.1
80.0 3.3 2.3
85.6
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Annex 6: Implementation Arrangements
SENEGAL: Quality Education for All Project - Phase 2
Analysis of Implementation Arrangements during Phase I and implications for Phase I1 Recent analyses, including the one conducted by the Quality Enhancement Review (QER) panel, noted that the major implementation challenges o f the project are: (i) the difficulties o f managing a complex program that involves numerous donors and many Government actors; (ii) weak strategic leadership in some areas o f the Ministry; and (iii) weak coordination within the Ministry and between the Ministry and its other partners. In an effort to improve the implementation under this phase, the task team has placed great emphasis o n the assignment o f clear roles and responsibilities in the sector, and on the creation o f an accountability structure that ensures the different actors o f the Ministry o f Education recognize their responsibility for the functioning o f the sector. I t supports the development o f management and leadership capacity in the Ministry, and aims to upgrade the equipment and other tools for the improved management o f the system.
The fol lowing are some o f the specific challenges raised in the Ministry’s Annual Program Execution document:
.
. . Procurement and financial management . .. . . Communication
Construction and rehabilitation of schools . .
Need for rigorous planning o f project activities to avoid overloading MinEdu entities Need to improve project monitoring and follow-up and support to schools, as wel l as human resource management, by IAs and IDENs Need to reinforce coordination between DPRE and DAGE Need for regular monitoring, planning updates and reporting Limited logistical resources
Complex and long procurement and financial procedures Need for more flexibility in terms o f disbursements Donor harmonization non-existent in reporting, procurement and disbursements Ensure proper coordination o f budget and financial management o f projects
Reinforce communication between the Ministry entities involved in project execution by ensuring regular exchange o f information (coordination meetings, reporting etc.)
Lack o f coordination concerning school building activities Need for regular monitoring-evaluation for and effective management o f school construction component involving DPRE and DCES
The implementation arrangements related to individual components are reflected in the Component descriptions in Annex 4 above. This annex, therefore, considers the overall implementation arrangements for the program, which are organized as follows: Coordination o f the overall project, by area o f responsibilities, and by sub-component; planning o f project activities; monitoring o f project execution in relation with reporting o f proj ect progress; and procurement and financial management The relationship between the different levels and project components or sub-components is described in the following matrix and organizational chart:
53
I -
I-
C] N
The table above provides detailed information regarding the role o f each actor with regard to the major activities planned under the project. The table below provides some more details with regard to the actual reporting arrangements. The final arrangements for implementation will be finalized during negotiations and will be included in greater detail in the procedures manual.
Local or regional focal points following on project execution Sub-component coordinator
Sub-component coordinator
Relevant directorate at central level
DPRE
DPRE
Monitoring action
The sub-component coordinator follows on project execution f rom a technical and contractual viewpoint. They should be assisted by IAIIDEN and regional accountants. Based on their assessment, the sub-component coordinator would trigger acceptance or final approval process to be validated by beneficiaries and central level coordinators. The sub-component coordinator sends a quarterly report to the relevant coordinator at the central level, with a copy to the DPRE and the DAGE With the assistance o f IAIIDEN, they ensure monitoring cross regions and suggest minor corrective actions, while for major issues they would report to DPRE or to the relevant directorate. Every 6 months the involved directorates send a bi-yearly report to the Secretary General.
DPRE consolidates al l progress reports and submits an annual report to the Secretary General Based on al l data collected, DPRE prepares an analytical report including sector indicators, recommendations, difficulties encountered etc.
Meeting calendar
Meets wi th execution agencyhody according to project milestones and as issues may arise Meets with focal point at least once a month, according to project milestones and as issues may arise
Meets wi th relevant MinEdu directorate every three months, and as issues may arise
The Secretary General and the MinEdu directorates meet twice a year as a Steering Committee. The Secretary General organizes an annual meeting with the CONSEF.
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Annex 6A: Letter of Development Policy SENEGAL: Quality Education for All Project - Phase 2
REPUBLIQUE DU SENEGAL Un Peuple - Un but - une Foi
An unofficial translation of this document is provided in A n n a 6B
LETTRE DE POLITIQUE GENERALE POUR LE SECTEUR DE L’EDUCATION
ET DE LA FORMATION
JANVER 2005
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INTRODUCTION
L a prCsente lettre de politique sectorielle, vise a rCajuster, la politique d’tducation et de formation pour la ptriode 2000-2015. Elle s’inspire de la l o i d’orientation 91-22 du 16 fCvrier 1991. DCja, en fCvrier 2000, le Gouvemement du SCnCgal avait adopt6 une lettre de politique gCnCrale pour l e secteur de 1’Cducation (couvrant la dkcennie 1999 - 2008), dont l e Programme DCcennal de 1’Education et de la Formation (PDEF) est l e cadre d’ opCrationnalisation.
Depuis lors, le contexte du secteur a connu des Cvolutions, notamment avec les conclusions du Forum Mondial de 1’Education de Dakar, la diclaration du Mi l lha i re , l e Nouveau Partenariat pour le DCveloppement de 1’ Afrique (NEPAD), le Document de StratCgie de Reduction de la PauvretC (DSRP), le protocole de la CEDEAO sur 1’Education et la formation, la dtcennie de l’alphabttisation et l a dkclaration des Nations Unies (avril2002).
Par ailleurs, les lepons t i r tes des trois annCes de mise en euvre du Programme DCcennal justifient un rtajustement des options Cducatives contenues dans la prCcCdente lettre de politique sectorielle. En effet, au cours de ces demikres annCes, le systkme a enregistrk d’importantes avanckes au plan de l’accks avec une forte pousste des scolarisations, une amklioration du taux de transition, de 1’Cquitk et une implication accrue du secteur privC. Ces progrks sont all& de pair avec, une mobilisation sans prCcCdent de ressources en faveur du dkveloppement du capital humain, notamment en faveur des plus pauvres, une amklioration du pilotage du secteur ainsi qu’une plus grande implication des communautCs dans l a gestion de 1’Ccole.
Cependant, dans un contexte de forte pression dkmographique, d’importants efforts restent A accomplir pour dCpasser les performances rCalisCes A ce jour, sachant que beaucoup d’enfants n’ont pas encore accks ti 1’Cducation formelle, sans tenir compte de la faiblesse des rendements scolaires. Aussi, s i la paritC est en passe d’stre atteinte dans l’ClCmentaire, te l n’est pas encore le cas dans les autres niveaux. Bien que substantiel, le volume des ressources publiques mobilistes demeure insuffisant au regard des objectifs A atteindre et des besoins d’kducation. L a dCvolution des pouvoirs aux collectivitts locales et aux structures dCconcentrCes reste encore timide.
I. PRIORITES DU GOUVERNEMENT
L e s activitCs dCvelopptes dans l e cadre du Programme DCcennal de 1’Education et de la Formation (PDEF) permettront de satisfaire aux exigences de la scolarisation universelle conformkment aux Objectifs de DCveloppement du Mi l l ha i re et de lutte contre la pauvrett. L’enseignement ClCmentaire est la premikre priorit6 de dCveloppement.
L’amklioration de la qualit6 et l e processus de dicentralisation et de dkconcentration constitueront les dominantes majeures des stratkgies de dkveloppement du secteur.
En seconde priorit6 est placCe la formation professionnelle et technique, dont la finalit6 est de mettre sur l e march6 du travail une main d’euvre qualifiCe en rCponse aux besoins du secteur productif et de 1’Cconomie.
11. - OPTIONS STRATEGIQUES POUR LE DEVELOPPEMENT DE L’EDUCATION
Les nouvelles orientations du secteur de 1’Cducation reposent sur les options suivantes :
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1.1
1.2
1.3
1.4
1.5
1.6
l’universalisation de l’achkvement du cycle ClCmentaire et l ’amilioration de l’accbs dans les autres cycles
l a crCation des conditions d’une Cducation de qualitC tous les niveaux de formation
1’Cradication de l’analphabktisme et l a promotion des langues nationales
l’expansion de l a responsabilitk des communautCs dans l e systbme tducatif. Ceci comporte notamment l a gestion des Ccoles, l e suivi de l a qualitC et l a mobilisation de ressources
l a promotion et l’orientation de l a formation professionnelle vers l e march6 du travail
L’Climination des disparitks entre groupes Cconomiques (riches/pauvres) entre sexes, inter et intra rkgionales, entre mi l ieux (urbaidrural), a tous les niveaux d’enseignement et l a prise en compte des besoins des enfants handicapkes
L a promotion de 1’Cducation des filles
L e partenariat efficace et b ien coordonnC
L’ouverture a l a coopkration rCgionale au sein de l’espace CDEAO.
1.7
1.8
1.9
I11 - POLITIQTJES ET STRATEGIES DE DEVELOPPEMENT DES SOUS SECTEURS
L e systkme Cducatif est organis6 de fagon i permettre A chaque enfant o u adulte sinkgalais d’effectuer des Ctudes gCnCrales jusqu’a l’enseignement supCrieur o u d’acckder A une formation professionnelle et technique adCquate. I1 est structurC en 06 sous secteurs : l e dCveloppement intkgrt de l a petite enfance, l’enseignement ClCmentaire et l’enseignement
moyen, qui constituent avec l e non forme1 1’Cducation de base, l e secondaire gCntral, l a formation professionnelle et technique et l’enseignement supCrieur. L’enseignement ClCmentaire et l’enseignement moyen constituent le cycle fondamental.
3.1. Dbveloppement intbgrt! de la petite enfance (DIPE)
L a politique de dkveloppement intCgrC de l a petite enfance vise i assurer l a prise en charge globale du jeune enfant sCnCgalais, de l a naissance a son intkgration dans l e systkme scolaire.
Dans le cadre de l a prise en charge de l a tranche d’iige des 0-3 ans, l’objectif du Ministbre de 1’Education sera centrC sur l a formation des parents et 1’Cveil du jeune enfant a travers l e dkveloppement des (( cases des tout-petits D, des crbches et des garderies communautaires.
D e 3 A 6 ans, l’enfant est pris en charge dans des structures de prise en charge de l a petite enfance : Ccoles maternelles et garderies communautaires, case des touts petits, dans l e cadre d’une approche holistique intCgrant les activitCs Cducatives, nutritionnelles et sanitaires. L e type d’kducation dispensCe a ce niveau a une fonction structurante dans l e processus d’kmergence de l a personnalitk et de 1’Cveil de ses virtualitks profondes et prepare globalement l’enfant aux apprentissages scolaires ultkrieurs.
Les strategies de dkveloppement reposeront sur une prise en charge publique (personnel et fonctionnement) en ce qui concerne les Ccoles maternelles publiques et communautaire pour les garderies communautaires et cases des tout petits.
Les promoteurs privks sont encourages dans ce secteur et pourront recevoir des appuis de M a t .
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3.2. L ’enseign em ent blbmen taire
L a finalit6 de l’enseignement ClCmentaire est de doter chaque enfant d’un substrat moral, civique, intellectuel et pratique solide pour servir de base une vie accomplie.
Son objectif est d’assurer ii chaque enfant d’ici 2010 un enseignement ClCmentaire de qualitk de six (06) ans. Tous les enfants pourront, d ’ ic i 2015, achever un enseignement ClCmentaire de 6 ans et devront poursuivre leur scolaritC dans l’enseignement moyen.
Pour atteindre ces objectifs, diffkrentes strategies d’6largissement de l’accbs a l’enseignement Clkmentaire et d’amklioration de l a continuitk mais aussi de l a qualit6 de l ’offre seront mises en Oeuvre dans l e cadre d’une approche intkgrke. Elles reposent sur:
i) I’amClioration du taux d’achbvement ; ii) un dkveloppement stratCgique de l a carte scolaire qui accorde l a priorit6 aux zones rurales et tienne compte de l a demande d’dducation notamment en mettant en place 1A OG les populations l e souhaitent, des Ccoles bilingues formelles franc0 arabes o u en introduisant l’enseignement de l’arabe dans les Ccoles existantes. A cet effet, des enseignants bivalents seront recrutks et formes selon les besoins des IDEN pour tenir les classes bilingues qui suivront l e curriculum officiel, qui sera rCformC pour tenir compte de cette donne. Dans tous les cas, les dipl6mCs de ces Ccoles doivent avoir les memes prktentions que ceux qui sont issus des Ccoles classiques. iii) l a construction de 2400 salles de classe additionnelles en moyenne par an, l a mise A niveau des Ccoles ti cycles incomplet et l a construction d’ouvrages annexes; l’allkgement et l’harmonisation des procedures et des coiits de construction. iv) une bonne maitrise de l a maintenance et de l’entretien des salles de classe par les communautCs et l a mise ii niveau des Ccoles en ouvrage annexe. v) l a promotion de l’accbs a 1’Cducation pour tous les enfants en portant une attention particulikre aux jeunes filles, aux enfants A besoins Cducatifs spkciaux, aux populations ii faibles revenus, aux populations des zones rurales, aux enfants dans des modbles alternatifs et aux populations dans des zones urbaines ?i forte densitC dkmographique. vi) l e recours aux classes A double flux dans les zones ii forte pression dCmographique ainsi qu’aux classes multigrades dans les zones 2i faible effectif. Cependant, l e dCpCrissement progressif des classes double flux est programmC. vii) l a disponibilitk de donnCes fiables sur les effectifs, les profi ls de sortie et les passerelles qui permettent de changer de systkme d’kducation o u d’intkgrer un autre modkle en fonction des besoins et de l a demande. viii) l e recrutement de 3000 enseignants volontaires en moyenne par an et l e redkploiement des enseignants titulaires non occupCs A des taches administratives essentielles, en veillant au maintien de coiits salariaux compatibles avec les objectifs d’acc&s. ix) le maintien des enfants i 1’Ccole et l’amklioration de I’efficacitC interne par l a rCduction des abandons et des redoublements. A cet effet des mesures administratives et pkdagogiques seront systCmatiquement mises en ceuvre. x) l a rCforme de l a subvention aux Ccoles pr ides, en accordant une priorit6 A celles accueillant des enfants issus des familles pauvres qui, par manque de disponibilitk d’une kcole publique, sont contraintes d’y scolariser leurs enfants. A contrario, les Ccoles privkes ne scolarisant pas d’Clbves issus des populations vivant en dessous du seuil de pauvretk ne recevront pas de subvention. Cette subvention sera alloute suivant un cahier des charges permettant de garantir le relkvement de l a qualit6 des enseignements.
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3.3 L ’enseignement moyen
Au niveau du moyen, les objectifs sont de relever l e niveau de connaissance, d’aptitudes et de compktences nkcessaires pour l’amklioration des performances des Clbves, pour permettre leur intkgration dans les cycles supkrieurs de l’enseignement gknCral, professionnel et technique. Dans cette perspective l’objectif du Gouvernement est d’accueillir dans l’enseignement moyen au moins 53 % des sortants de 1’Clkmentaire en 2007 et 65 % en 2010. A cet effet, les mesures B promouvoir sont les suivantes : i) la promotion du modble de collbge de proximite ii) 1’amClioration des capacitks d’accueil du sous-secteur par la crCation d’un nombre suffisant de collkges par an d’ici 2010 et la rehabilitation de collkges et de salles de classe dans les Ctablissements d’enseignement moyen; l’instauration des normes de 45 Clbves par groupe pkdagogique et de 20 heures de service hebdomadaire en moyenne par enseignant ; le recrutement de 1100 vacataires en moyenne par an, d’ici 2007 et 1300 d’ici 2010 ; la formation d’enseignants polyvalents et l’utilisation rationnelle des enseignants. iii) l’octroi de subvention aux Ccoles privies accueillant des enfants issus de familles pauvres de sorte B maintenir les frais en de# du cofit unitaire du public tout en amkliorant la qualitk des services dklivrks.
3.4. L ’&ducation non formelle
Les Ecoles Communautaires de base ont essentiellement pour cibles des enfants et adolescents igCs entre 9 et 14 ans, non scolarisks ou d6scolarisCs. L’Etat appuiera le dkveloppement des modbles alternatifs dans l e cadre des Ecoles communautaires de base qui seront essentiellement dkveloppes dans des zones et des contextes OG l ’offre d’kducation publique est inexistante.
Les daaras seront modernisks B travers une rCforme curriculaire qui intkgrera l’introduction du trilinguisme et de la formation professionnelle. Dans cette optique, il s’agira d’amkliorer les conditions de v ie et d’apprentissages des talibCs ; de prCparer les apprenants B une insertion socioprofessionnelle ; et de crier des passerelles permettant aux produits des daaras modernes d’intkgrer l e circuit franco-arabe officiel ou classique.
L’Etat encouragera les enfants dans les autres modbles alternatifs B intCgrer le systbme d’kducation formel.
L’kradication progressive de I’analphabktisme des adultes de 15 B 49 ans pour arriver B un taux minimal de 10 % en 2012 par : l e renforcement du transfert de compktences aux collectivitis locales et aux structures dkconcentrkes (IA - IDEN) pour la supervision de l’exkcution des programmes d’alphabktisation ; I’intCgration de 1’alphabCtisation fonctionnelle et de la post- alphabktisation dans l e cadre d’un programme global unifik avec un manuel de prockdures unique ; la sous-traitance des programmes d’alphabttisation avec des opkrateurs privks ou des ONG expCriment6s. Elle s’appuie sur les langues nationales dont la promotion sera assurke B l’kcole et dans la vie officielle et publique.
3.5. L ’enseignement secondaire gknkral
L’enseignement secondaire gCnCral a pour objectif de dkvelopper le niveau d’kducation et de formation des apprenants pour leur permettre de poursuivre des ktudes ou des formations professionnelles supkrieures adCquates.
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Globalement, les sous-secteurs de l’enseignement secondaire gCnCral et de la formation professionnelle et technique accueilleront 80 % des sortants du cycle fondamental d’ici 2010. De manibre spCcifique, l’enseignement secondaire gCnCral, accueillera 70 % de ces 80 %. De nouvelles approches de gestion pkdagogique et administrative des Ctablissements y seront dCveloppCes. A cet effet, il s’agirade mettre en place un programme d’extension de l ’off ie d’enseignement secondaire general bask sur une carte scolaire rationaliske ; de recruter 300 vacataires polyvalents en moyenne par an d’ici 2010, tout en dbconcentrant le recrutement et la formation initiale et continuke des enseignants ; de veiller a l’application stricte de la norme horaire de 20 heures en moyenne par semaine pour chaque enseignant.
3.6. L a formation professionnelle et technique
L’Enseignement Technique et la Formation Professionnelle Cpousent l e concept de formation professionnelle et technique, qui fait l’objet d’une rCforme en profondeur fondCe sur une nouvelle vision. Celle-ci tient compte de l a spkcificitt du sous secteur, precisant ses ambitions et son champ d’action et modifiant ses principes ainsi que ses mCthodes d’intervention. Dans ce cadre, el le est conque comme un instrument visant a assurer la compCtitivitC et l a performance de 1’Cconomie et est centrCe sur les finalitCs ci-dessous : - mettre sur l e march6 du travail une main d’ceuvres qualifiks, en rCponse aux besoins du
secteur productif et de l’kconomie en ouvriers, employts, techniciens, agents de maitrise et techniciens supCrieurs ; promouvoir l e savoir agir, l’employabilitt et la crCativitC chez les jeunes et les prCparer a devenir des acteurs performants dans l a v ie active ; accroitre l e taux de qualification professionnelle et technique au sein de la population.
-
-
L a formation professionnelle et technique a pour ambition A moyen terme : i) de satisfaire les besoins en main d’ceuvre nouvelle des 5 a 6 secteurs prioritaires de croissance du SCnCgal avec un objectif de 20 000 personnes formCes par an en 2010 ; ii) de rehausser dans ces secteurs le niveau de qualification interne des employks pour une productivitk de la main d’ceuvre proche des standards intemationaux ; iii) de permettre un taux d’emploi des formCs proche de 100%. Elle institue dCsormais l e principe d’un pilotage partenarial systkmatique, impliquant les principaux acteurs et bCnCficiaires de la formation professionnelle et technique et plus particulibrement le secteur privC, dans l a prkparation et la mise en ceuvre des plans stratkgiques y affkrant . Elle est organisCe autour des missions de formation initiale, de formation continue et d’insertion des formes. Son champ d’action s’Ctend dCsormais a l’apprentissage, en tant que formation professionnelle non formelle, dans l’objectif de la mise en place de processus de qualification norm& et adapt&.
L a formation professionnelle et technique pourra permettre a 1’Clbve sortant de 1’Ccole ClCmentaire d’accCder A une formation par l’apprentissage traditionnel ou de prCparer un diplame professionnel de niveau V. Comme les Clbves sortant de l’enseignement moyen ou secondaire, i l s pourront accCder a des formations professionnelles et techniques de niveau V et IV et 111, il aura la possibilitC de poursuivre une formation, Cventuellement jusqu’au niveau de technicien suptrieur, voire de rejoindre ultCrieurement l e second cycle de l’enseignement suptrieur. Des passerelles devront permettre a m dipl8mCs de la formation professionnelle et technique de poursuivre leur formation vers les niveaux supkrieurs.
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3.8. L ’enseignement supkrieur
Pour relever valablement et durablement les dCfis de la mondialisation, Cviter sa marginalisation dans l a marche vers le diveloppement durable, l e SCnCgal entend placer l’enseignement supCrieur et la recherche scientifique au cceur de sa politique de dkveloppement, pour se hisser au rang de pays Cmergent 2i l’horizon 2015-2020. Il s’agira donc pour notre pays d’klargir pour tous les citoyens, femmes et h o m e s , les possibilitCs d’accks 2i une formation de qualitC 2i tous les niveaux du systkme et tout au long de la vie.
Les options structurantes de cette nouvelle politique d’enseignement supkrieur et de recherche scientifique se dCclinent comme suit :
i) diploiement de la nouvelle carte universitaire, avec l a mise en place de 1’UniversitC Polytechnique de Thiks (UPT), l’ouverture des Collkges Universitaires RCgionaux (CUR) et l a crtation de la FacultC des Sciences et Technologies de 1’Education et de la Formation (FASTEF) ; les orientations retenues 2i cet tgard permettront d’Clargir l’offre de formation supkrieure, dans les rkgions notamment, tout en mettant l’accent sur la professionnalisation des cursus ; augmentation des effectifs d’ktudiants de 1’UniversitC Gaston Berger (UGB) et dksengorgement de 1’UniversitC Cheikh Anta Diop (UCAD) ; renforcement de la politique d’tmergence des Ctablissements privCs d’enseignement supCrieur ; ii) promotion de l’usage des technologies de l’information et de la communication dans l’enseignement ; iii) amklioration des rendements interne et externe de l’ensemble du systkme, combinCe au dtveloppement d’une politique de contractualisation et au renforcement de l’autonomie des Ctablissements ; iv) mise en place d’un systkme national d’tvaluation et d’accriditation ; v) mise en place d’instances appropriCes pour garantir la cohCrence d’ensemble, l’harmonisation et la coordination de la politique en matikre d’enseignement supkrieur et de recherche scientifique ; vi) diversification des sources de financement du systkme et amklioration de son efficience.
IV - AMELIORATION DE LA QUALITE DE L’EDUCATION ET DES PERFORMANCES DU SYSTEME EDUCATIF
L a qualitC dans 1’Cducation formelle et non formelle fera l’objet d’une attention particulikre durant les prochaines annCes. Cette qualitC sera dCveloppC en s’appuyant sur :
i) l’institutionnalisation et l’optimisation des diffkrentes fonctions de 1’Cvaluation par : 1 1’Cvaluation pkriodique des acquis scolaires comme outil d’aide 2i la prise de dCcision et de pilotage de la qualitC au niveau central et dCconcentrC ; . la promotion de 1’Cvaluation formative dans les pratiques pkdagogiques et de celle de l’autodvaluation en vue d’une regulation permanente des apprentissages et de l’amklioration du niveau de maitrise des acquis scolaires ; . 1’amClioration A tous les niveaux de la fiabilitC et de la validit6 des kpreuves des examens et concours . la mise en place de dispositifs de suivi de la qualitk au niveau central et dCconcentrC
ii) la rCforme du curriculum fond6 sur l’entrCe par les competences afin d’orienter les activites d’apprentissage sur un ensemble de savoirs, de savoir-faire et de savoir-Ctre intCgrCs, significatifs et nkcessaires pour la rCsolution des problkmes scolaires et ceUx de la v ie courante.
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iii) la finalisation des outils du curriculum de 1’Cducation de base actuellement en construction active ; la mise en place un dispositif de requalification du personnel enseignant; l’tvaluation de l’introduction de 1’Cducation religieuse ii 1’Ccole primaire, l’kvaluation de l’introduction des langues nationales it 1’Ccole primaire ; la poursuite de l’expirimentation du trilinguisme.
iv) la restructuration de la formation initiale des enseignants (rCvision des programmes de %8 formation des enseignants, formation des formateurs stages pratiques), la formation des
enseignants au nouveau curriculum.
v) la rhovat ion de la formation continuke autour des cellules d’animation pkdagogiques (CAP), et des pBles rkgionaux de formation (PRF) en vue de dCvelopper l’esprit d’Cquipe et l’auto encadrement afin de supplCer l e deficit d’encadreurs pkdagogiques.
vi) l’implication des communautCs dans l a gestion des Ccoles et le suivi de l a qualitC.
vii) le respect de la norme de 900 heures annuelles d’enseignements, dans le cadre d’un calendrier de 30 semaines effectives de 30 heures de travail chacune. Des procddures de gestion rigoureuse de l’absentkisme des enseignants et des Clbves seront mises au point et appliquCes systkmatiquement
viii) 1’Cradication des inkgalitis permettant d’atteindre un ratio manuelslClbve de 02 au CUCP, de 05 dans les autres classes de 1’ClCmentaire et de 06 dans l e moyen secondaire en 2010 b a d sur des strattgies et des mCcanismes de choix multiple et dCconcentrC. Des bibliothbques scolaires seront mises en place et Cquiptes dans le cadre des Ccoles du cycle fondamental et des lycCes.
ix) la rCforme du curriculum au niveau du secondaire gCnCrale qui devra se faire dans le cadre de la dynamique de diversification des filibres. Cette reforme sera orientke vers le relbvement du niveau de l’enseignement des mathkmatiques et des sciences physiques. L e systbme d’orientation A la fin de la quatribme annCe du moyen devra Ctre amCliorC pour rCCquilibrer les diffkrentes filibres au profit des orientations scientifique et techniques. L e niveau de qualit6 du secondaire gCnCrale doit Ctre hiss6 de telle manibre A faciliter l’insertion dans le systkme universitaire et ultkrieurement dans la v ie professionnelle.
x) 1’amClioration de la qualit6 de l’enseignement des sciences et de la technologie, et la promotion de l’accbs et du maintien d’une proportion importante d’apprenants dans ces filibres.
xi) la promotion des technologies de l’information et de la communication pour la gestion administrative et l’amdlioration des pratiques pCdagogiques.
xii) l’tducation a la santClnutrition, A l’environnement, i la v ie familiale et en matibre de population constitue une garantie essentielle pour l’avbnement d’un dCveloppement humain durable. Dans l e cadre du curriculum, des compCtences utiles seront installCes chez les apprenants en matibre de prdvention des maladies telles que le VWSIDA et le paludisme et des paquets de service de santC seront domiciliCs dans les ttablissements scolaires. Durant les prochaines annCes, un effort particulier sera dCployC pour 1’amClioration de l’environnement scolaire, la mise en place de points d’eau potable et de blocs sanitaires sCparCs pour filles et gargons dans toutes les Ccoles du SCnCgal.
xiii) la mise en place de cantines scolaires surtout en milieu rural et pkriurbain dans l’optique d’accroitre les chances d’accbs et surtout de rCussite scolaire des Clbves. Les diffkrentes
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expkriences dCveloppCes seront CvaluCes en vue de la stabilisation des modkles les plus pertinents et ptrennes.
xiv) le service d’orientation scolaire et professionnelle sera rCformC qualitativement pour permettre aux psychologues conseillers de jouer efficacement leur d e . L’accent sera mis sur le suivi psychologique et pCdagogique en vue de favoriser l’adaptation des apprenants et d’Cclairer les choix g r b e a une information adaptCe ti tous les niveaux sur les Ctudes et les professions.
V - LE MANAGEMENT GLOBAL DU SYSTEME EDUCATIF
5.1. Le pilotage du systhze bducatif
L e dCveloppement du secteur repose d’une part sur une approche programme et d’autre part sur la planification dCcentralisCe, par l’klaboration, la mise en ceuvre ainsi que 1’Cvaluation de plans locaux, dkpartementaux et rkgionaux de dkveloppement de 1’Cducation (PLDE, PDDE et PRDE), dans le cadre d’un partenariat regroupant les collectivitCs locales, les autoritCs scolaires dCconcentrCes et l a sociCtC civile. L a formation et l’encadrement des personnels des structures dCconcentrCes de planification seront assurCs. L’autonomie et la responsabilitk des Ccoles et Ctablissements scolaires ou de formation seront renfordes, en particulier, dans l e cadre du diveloppement des projets d’Ccoles et d’ktablissements qui, par une planification ascendante, alimentent les PLDE, PDDE et PRDE. Un dispositif de gestion introduira l’obligation de rCsultats a tous les niveaux et l’environnement de travail de l’administration sera modernisC. L’information et la communication seront privilCgiCes. Des espaces de concertation seront mises en place systkmatiquement a tous les niveaux.
5.2. Le management des ressources humaines
Dans le cadre de la mise en place d’un dispositif global de gestion moderniske et dCcentralisCe, l’objectif sera de pourvoir correctement le systkme en personnels enseignants et non enseignants de qualitC, dans l e cadre de la politique de contractualisation.
Cet objectif s’appuiera sur 1’Claboration d’une politique de gestion des ressources humaines dont les objectifs sont d’optimiser la gestion du personnel notamment de recruter, sur une base contractuel, l e personnel nkcessaire, de lui assurer une formation adCquate, et de mener une communication systkmatique avec les acteurs clCs ; le soutien et l’encouragement aux IA et IDEN qui gkrent avec efficaciti les ressources de personnel, ou sanctionner ceux qui de manikre consciente contribuent au dktoumement de ces ressources du personnel; 1’Claboration d’un dispositif de transfert de pouvoir dicisionnel aux structures dCconcentrCes et dCcentralistes ; dCveloppement d’une approche (( gestion par poste budgktaire D (affectation de postes aux Ctablissements) ; la formation des personnels des structures dCconcentr6es ; la rkvision du mouvement des personnels en vue de corriger les dCsCquilibres provoquCs par le dtploiement des enseignants ; 1’Claboration des plans de formation pour les contractuels, les enseignants fonctionnaires et les agents des services centraux; la mise en place d’une procCdure de nomination A des postes de responsabilitt plus sClective et plus attractive Cgalement, avec des cahiers de charges prCcis; le dkveloppement d’une politique de maintien et d’assistance psychosociale des personnels et la mise en place d’un schCma de motivation, intCgrant notamment des avantages pour les enseignants qui remplissent leurs fonctions avec satisfaction.
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5.3. Gestion financi2re.
L a mise en place d’un dispositif pCrenne de revue annuelle des dCpenses publiques par 1’Claboration du Cadre des DCpenses Sectorielles B Moyen Terme (CDSMT) sera effective en 2005 en vue d’amkliorer l’efficacitk et 1’CquitC des dCpenses Cducatives de 1’Etat. L e C D S M T prkcisera les missions, les objectifs, les activitCs et les coats (pour chaque niveau), en terne de fonctionnement et d’investissement, tous en accord avec les objectifs nationaux de 1’Cducation et de 1’Cconomie.
Les dCpenses de fonctionnement en faveur de 1’Cducation devront reprCsenter 40% des dCpenses de fonctionnement du budget de 1’Etat hors service de l a dette. L a part des budgets des collectivitks locales consacrke B 1’Cducation devra s’accroitre progressivement de 8 % en 2000 pour atteindre un seuil minimal de 10% en 2010 af in de faire face aux charges rCcurrentes et dCpenses d’investissement. Affectation d’au moins 49% du budget de 1’Cducation au diveloppement de l’enseignement ClCmentaire en 2010 soit 47% en 2007. L’enseignement moyen recevra 10% en 2010, soit 9% environ en 2007. 8% seront affect& B l a formation professionnelle et technique en 2010, soit 7% environ en 2007. L’allocation des ressources au supkrieur sera faite suivant un contrat d’objectif l iant 1’Etat aux UniversitCs.
L e financement de 1’Cducation sera essentiellement assurk en partenariat entre l’Etat, les collectivitks locales, les communautts, les parents, les ONG, l a sociCtC civile, les promoteurs privts, les entreprises p r i d e s et les partenaires techniques et financiers. Des prockdures d‘harmonisation et de simplification des mkcanismes lies aux financements extkrieurs seront mises en place pour renforcer 1’effcacitC de cette aide.
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V I - INDICATEURS
Indicateurs de performance l i e s A l’acc&s
L e relbvement du taux de prC scolarisation de 6’5 % en 2004 A 12 % en 2007 et 20 % en 2010 visant les enfants de 3-6 ans.
L e taux d’analphabdtisme sera ramen6 A 10% en 2012.
L’accroissement du taux brut de scolarisation dans 1’ClCmentaire de 79’9% en 2004 A 88’9% en 2007 et 100% en 2010.
L a proportion des filles dans les effectifs scolaires sera paritaire dans l’enseignement primaire en 20 10 et dans l’enseignement moyen et secondaire en 20 15.
Indicateurs de performance liCs i la qualit6 de 1’Cducation
L e seuil de maitrise en franqais, maths, et science mesurCe par un systkme d’6valuation standardide, une premibre fois au niveau de 1’ClCmentaire et ultkrieurement au niveau moyen, sera relevC de 05 points d’ ic i 2007. L’Cvaluation formative sera tgalement un ClCment primordial pour relever l a qualit6 des apprentissages.
L e volume horaire effectif d’apprentissage pour les Clbves du primaire passera A 900 heures annuelles en 20 10.
L e Taux brut d’admission au CI atteindra 100% en 2007 et 105% en 2010.
Faire passer l e taux d’achhvement du cycle ClCmentaire de 48% en 2003 i 85% en 2010.
L e taux de redoublement sera maintenu A un maximum de 5% d’ici 2010.
L e ratio manuelslClbve de 02 au CI/CP, de 05 dans les autres classes de 1’ClCmentaire sera atteint en 2007.
Indicateurs de performances lies A la gestion
L’organigramme des directions centrales et des services dkconcentrts, ainsi que la description des postes et l a division du travail seront formalisCs et mis en place en 2005.
Un protocole d’accord avec les collectivitCs locales et les communautts sera Ctabli.
Un cadre des dCpenses sectorielles A moyen terme, intCgrant les financements extdrieurs sera disponible en 2005.
Une revue sectorielle sera tenue chaque annCe avec les partenaires techniques, financiers et sociaux af in d’Cvaluer conjointement l a pertinence, les rtsultats, l’efficacitk, et l’impact du PDEF mais aussi de discuter et approuver l e plan d’action de 1’annCe suivante.
LE MINISTRE DE L’EDUCATION LE MINISTRE DE L’ECONOMIE ET DES FINANCES
MOUSTAPHA SOURANG
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ABDOULAYE DIOP
Annex 6B: Unofficial translation of Letter o f Development Policy
SENEGAL: Quality Education for All Project - Phase 2
REPUBLIC OF SENEGAL One People - One Aim - One Faith
GENERAL POLICY LETTER FOR THE EDUCATION AND TRAINING SECTOR
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INTRODUCTION
This sectoral policy letter seeks to readjust the Education and Training Policy for 2000- 20 15. It i s based on the 91 -22 Orientation L a w (Loi d 'orientation) o f February 16, 199 1. The Government o f Senegal had already adopted a Letter o f Development Policy for the education sector in February 2000 (covering the decade 1999-2008) with a Ten-Year Education and Training Program (PDEF) as i t s operational framework.
Since then the context o f the sector has changed considerably following the conclusions o f the Dakar World Education Forum, the Millennium Declaration, the New Partnership for African Development (NEPAD), the Poverty Reduction Strategy Paper (PRSP), the ECOWAS Protocol on Education and Training, the Literacy Decade and the United Nations Declaration o f April 2002.
The lessons learned from three years o f implementation o f the Program dictate a readjustment o f the educational options spelt out in the previous sectoral policy letter. Tn fact, in the last few years, the system has made remarkable progress in terms o f access to education with a sharp increase in enrolments, marked improvement in the transition rate, in equity and in the greater involvement o f the private sector. This progress was coupled with an unprecedented mobilization o f resources for the development o f human capital targeting the poorest in particular, improvement o f sector management as wel l as greater community involvement in school management.
Nevertheless, in the presence o f strong demographic pressure, much remains to be done to exceed the results achieved to date. This is al l the more so as many children s t i l l lack access to formal education, not to mention the poor education outcomes. Furthermore, although parity has almost been reached in elementary school, the same cannot be said at the other levels. The volume o f mobilized public resources may be substantial but falls short o f the objectives to be attained and the needs to be met. The transfer o f responsibilities to the local governments and other decentralized structures remains timid.
I. GOVERNMENT PRIORITIES
The activities carried out under the PDEF will make it possible to meet the demands o f universal education in compliance with the MDGs and the fight against poverty. Elementary education i s the f i rst development priority.
The second priority i s vocational and technical training with the aim o f placing qualified manpower on the labor market, in response to the needs o f the productive sector and o f the economy.
11. STRATEGIC OPTIONS FOR EDUCATION DEVELOPMENT
The new direction o f the education sector is based on the following options:
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1.1
1.2
1.3
1.4
1.5
1.6
1.7
1.8
1.9
111.
universal completion o f the elementary cycle by all, and improved access in the other cycles
creation o f conditions for quality education at a l l levels
eradication o f illiteracy and promotion o f national languages
expansion o f the responsibilities o f communities in the educational system. This would include, in particular, school management, monitoring o f quality and mobilization o f resources
promotion and orientation o f vocational training towards the labor market
elimination o f disparities between economic groups (ricWpoor), between sexes, between and within regions, between zones (ruralhrban) at a l l levels o f education and pay due attention to children with disabilities
promotion o f girls’ education
maintaining effective and well-coordinated partnerships
promotion o f regional cooperation within the ECOWAS zone.
DEVELOPMENT STRATEGIES AND POLICIES FOR SUB-SECTORS
The educational system i s organized in such a way as to enable every Senegalese chi ld or adult to pursue general studies up to higher education or to have access to adequate vocation and technical training. I t i s structured into 06 sub-sectors:
Integrated early childhood development; elementary education and middle school education, which together with non-formal education, form the basic education cycle; general secondary education; vocational and technical training; and higher education. Elementary and middle school education constitute the fundamental cycle.
3.1 Integrated Early Childhood Development (DIPE)
The integrated early childhood development pol icy seeks to ensure the general provision o f care to the Senegalese chi ld from birth to the point o f integration into the school system.
With regard to the care given to children in the 0-3 age bracket, the objective o f the Ministry o f Education will be focused o n training the parents and awakening the minds o f the children through the “cases des tout-petits ”, community nurseries and day care centers.
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From the age o f 3 to 6, the chi ld i s cared for in early childhood development structures: pre-schools, community nurseries, “case des tout petits ”, as part o f a holistic approach integrating educational, nutritional and health activities. The type o f education given at this level has a structural function in bringing out the personality o f the child, awakening hidden potential and preparing the child, o n the whole, for subsequent schooling.
The development strategies wil l be based on public financing (staff and operating costs) for public pre-schools and community financing for community day care centers and cases des tout-petits.
Private promoters are encouraged in this sector and are eligible for Government subsidies.
3.2 Elementary Education
The ultimate objective o f elementary education i s to provide each chi ld with a sound moral, civic, intellectual and practical foundation for a wholesome life.
I t seeks to provide each chi ld with 6 years o f quality elementary education by 2010. All children wil l be able to complete a six-year elementary education and continue to middle school by 20 1 5.
T o attain these objectives, various strategies wil l be put in place using an integrated approach to expand access to elementary education and improve the continuity and quality o f delivery. They are as follows:
(i) (ii) areas and takes into account the demand for education by, inter alia, setting up, wherever the population so requests, formal bilingual Franco-Arabic schools or by introducing the teaching o f Arabic in existing schools. In this regard, bivalent teachers wil l be recruited and trained, according to the DENS’ needs, to teach bilingual classes that will offer the official curriculum, which in turn will be revised to take this fact into consideration. In any case, the graduates o f these schools should have the same opportunities as those from conventional schools. (iii) with incomplete cycles and the construction o f auxiliary building; streamlining and harmonization o f construction procedures and costs. (iv) additional auxiliary buildings. (v) girls, children with disabilities, low-income families, people in rural areas, children in alternative education systems, and people in densely populated areas. (vi) use o f double-shift classes in high density areas and multi-grade classes in l o w density areas. However, the gradual phasing out o f double-shift classes i s planned.
improvement o f the completion rate; strategic development o f the school mapping process that gives priori ty to rural
.
construction o f an average o f 2400 classrooms per year, the upgrading o f schools
mastery o f classroom maintenance by communities and upgrading o f schools with
promotion o f access to education for al l children with special focus on young
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(vii) redeployment o f incumbent teachers not involved in essential administrative tasks, while ensuring that the wage bill remains compatible with the access objectives. (viii) Retention o f children in school and improvement o f internal efficiency by reducing dropout and repetition rates. To this end, administrative and pedagogic measures will be implemented. (ix) from poor families who, because public schools are not available, are compelled to send their children to private establishments. On the other hand, private schools that do not take in children below the poverty threshold wil l not be subsidized. Such subsidies will be granted according to terms and conditions that guarantee improvement o f the quality o f education.
Recruitment o f 3000 volunteer teachers per annum o n average, and the
Reform o f private school subsidies, by giving priori ty to those that admit children
3.3 Middle School Education At the middle school level, the objectives are to raise the level o f knowledge, aptitude and competencies needed to improve student performance in order to facilitate their integration into the subsequent cycles o f general, vocational and technical education. To that end, Government aims to have at least 53 percent o f elementary school graduates in 2007 and 65 percent in 201 0 enrolled in middle school. Therefore, the fol lowing measures are to be taken: i) promotion o f the model o f rural middle schools (colliges deproximite? ii) increase in the capacity (number o f places) at this level by establishing a sufficient number o f schools between now and 201 0 and rehabilitating schools and classrooms in middle schools; setting a norm o f 45 students per class and an average o f 20 hours per week per teacher; recruitment o f 1 100 part-time teachers per year by 2007 and 1300 by 201 0; training o f multi-disciplinary teachers and rationalized use o f teachers. iii) granting o f subsidies to private schools that take in children from poor families so as to keep costs below public unit cost while improving the quality o f service delivery.
3.4 Non-Formal Education
The basic community schools (e'coles communautaires de base) target mainly children and adolescents between the ages o f 9 and14 who have never attended school or have dropped out. The Government supports the development o f alternative models within the framework o f basic community schools that wil l be developed mainly in areas where public education facilities are non-existent.
The daaras (Koranic schools) will be modernized through curricular reform that wil l introduce trilingual studies and vocational training. In this perspective, the main a im will be to improve the living and learning conditions o f the talibbs or religious students; prepare the learners for socio-professional integration; and build bridges to facilitate the transition from modern daara to the official or conventional Franco-Arabic system.
The Government will encourage children from other alternative models o f education to j o i n the formal education system.
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The progressive eradication o f illiteracy in adults 15 to 49 years o f age in order to reach the rate o f 10 percent in 2012 by: strengthening the transfer o f powers to local governments and deconcentrated structures (IA - DEN) to supervise the implementation o f literacy programs; integration o f functional literacy and post-literacy into a comprehensive unified program with a single manual o f procedures; and sub-contracting o f literacy program management to private providers or experienced NGOS. The program wil l promote national languages in school and in off icial and public life.
3.5 General Secondary Education
General secondary education aims to develop the learners’ level o f education and training so that they can pursue the appropriate higher studies or adequate vocational training at superior levels.
Overall, the general secondary education and vocational and technical training sub- sectors wil l enroll 80 percent o f the students that have completed the fundamental cycle by 2010. More specifically, general secondary education will take in 70 o f the 80 percent. New approaches to pedagogic and administrative management o f the establishments wil l be developed there. The aim will be to: put in place an extension program offering general secondary education based o n a rationalized school map; recruit 300 multi- disciplinary vacataires or part-time teachers by 20 10 while decentralizing recruitment and pre-service and in-service training o f teachers; ensure the strict enforcement o f the norm o f 20 hours per week per teacher.
3.6 Vocational and Technical Training
Technical Education and Vocational Training espouse the idea o f vocational and technical training that i s subject to in-depth reform based on a new vision. This reform will take into account the specific nature o f the sub-sector, spelling out the objectives and scope o f action and modifying the principles and methods o f intervention. In this context, i t i s designed as a tool aimed at ensuring competitiveness and economic performance. I t i s centered around the following final objectives: - put qualified manpower o n the labor market in response to the needs o f the productive
sector and o f the economy for highly qualified workers, employees, supervisors, and technicians; promote proactivity (savoir agir), openness to employment (employabilite? and creativity among youth, and prepare them to become top performers in an economically active life; increase the vocational and technical qualifications o f the population.
-
-
The medium-term objectives of vocational and technical training are to: i)
ii)
meet the needs for new manpower in the 5 to 6 priori ty growth sectors o f Senegal by having 20,000 persons trained by 201 0; raise the level o f staff qualification in these sectors to approach that o f international standards in terms o f productivity;
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iii) make it possible for the employment rate o f trained persons to reach the 100 percent mark.
The sub-sector is instituting the concept o f systematically using partnership arrangements involving key stakeholders and beneficiaries o f technical and vocational training, especially the private sector, in the preparation and implementation o f relevant strategic
I t i s organized around pre-service and in-service training and the integration o f those trained. I ts scope o f action extends to apprenticeship as non- formal vocational training with the aim o f setting up an adapted standardized qualification process.
Vocational and technical training wil l enable elementary school leavers to train through traditional apprenticeships or prepare for a Level V diploma. A s in the case o f students who complete middle or secondary school, they too will have access to vocational and technical training o f Levels V, IV and 111. They will also be able to pursue their training, possibly up to the level o f senior technician, and even j o i n the second cycle o f higher education subsequently. Vocational and technical education graduates should be able to transition to higher levels o f training.
plans.
3.8. Higher Education
To be able to meet the challenges o f globalization in a meaninghl and lasting manner and avoid being left by the wayside in the march towards sustainable development, Senegal intends to place higher education and scientific research at the center o f i t s development pol icy so as to raise itself up to the level o f emerging countries by 2015- 2020. For our country, i t i s therefore a matter o f expanding access for al l our citizens, men and women, to quality education at a l l levels o f the system and throughout their lifetimes.
The structural options for this new higher education and scientific research pol icy approach are as follows:
(9
(ii)
(iii)
deployment o f the new university map fol lowing the establishment o f the ThiBs Polytechnic University (UPT), the opening o f the Regional University Colleges (CUR) and the creation o f the Faculty o f Science and Technology for Education and Training (FASTEF); the orientations selected in this respect will help increase the provision o f higher education in the regions in particular, while placing emphasis o n the professionalization o f the degree course; increasing enrolment rates at the Gaston Berger University (UGB) and reduce overcrowding at the Cheikh Anta D iop University (UCAD); strengthening the pol icy for the emergence o f private higher education establishments; promoting the use o f information and communication technology in education; Improving the internal and external efficiencies o f the overall system, in conjunction with the development o f a pol icy for contractual hiring and greater autonomy for the establishments;
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(iv) (v)
Setting up a national system o f evaluation and accreditation; Establishing appropriate entities to ensure overall coherence, and harmonization and coordination o f the higher education and scientific research policy; Diversifying the system's financing sources and improving i t s efficiency; (vi)
IV. PERFORMANCE OF THE EDUCATIONAL SYSTEM
IMPROVEMENT OF THE QUALITY OF EDUCATION AND
The quality o f formal and non-formal education will be given special attention in the coming years by:
9
ii)
iii)
iv)
V I
vi)
institutionalizing and optimizing the various evaluation methods through: 0 the periodic evaluation o f educational performance as an input into
decision-making and quality management at the central and deconcentrated levels; promotion o f formative evaluation in teaching/learning practices and o f ' self-evaluation with a view to ensuring continuous control o f learning practices and improving the level o f educational performance; improvement at al l levels o f the reliability and validity o f tests, certifying exams (examens) and selection exams (concours); establishment o f mechanisms for quality control at the central and deconcentrated levels.
0
0
0
curricular reform based on competencies in order to gear learning activities towards an integrated body o f meaningful knowledge, know-how and behavior (savoir &e) needed for problem solving in school and everyday life.
finalizing basic education curricular tools under active construction; setting up a mechanism for requalification o f teaching staff; evaluation o f introduction o f religious education in primary school; evaluation o f introduction o f languages in primary school; pursuit o f the trilingual pilot.
restructuring o f pre-service teacher training (revision o f teacher training programs, training o f trainers and practical training), training o f teachers on the new curriculum.
renovation o f in-service education using pedagogic animation units (cellule d 'animation pe'dagogiques - CAP) and regional training poles (poles re'gionaux de formation - PRF) to develop team spirit and self-training in order to remedy the shortage o f pedagogic trainers.
involvement o f the communities in school management and quality control
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vii) enforcement o f the norm o f 900 instructional hours per annum during a period o f 30 weeks at 30 work-hours per week. Strict enforcement o f management procedures governing teacher and student absenteeism.
viii) eradication o f inequities in order to achieve a textbooWstudent ratio o f 2 in CI/CP, 5 in the other elementary classes and 6 in middle secondary in 201 0 based on deconcentrated and multiple choice strategies and mechanisms. School libraries wil l be set up and equipped in fundamental schools (elementary and middle schools) and in high schools.
ix) curricular reform at the general secondary level, which should take place as part o f the dynamic o f diversifying career paths. This reform will be geared towards raising the level o f the teaching o f math and science. The system o f orientation at the end o f the fourth year o f middle school will be improved to correct the imbalance between the various branches by promoting orientation towards scientific and technical subjects. The level o f the general secondary education quality should be raised to facilitate integration into the university system and later into professional life.
x) improvement in the quality o f the teaching o f science and technology and the promotion o f access and retention o f a large proportion o f students o f these subjects.
xi) promotion o f information and communication technologies in administrative management and in the improvement o f pedagogic practices.
xii) education about healthhutrition, the environment, family l i f e and population constitutes a prerequisite for achieving sustainable human development. As part o f the curriculum, useful skills wil l be taught to the learners in the area of disease prevention such as HIV/AIDS and malaria, and health service packages will be provided in schools. During the next few years, special efforts will be made to improve school environment, build potable water points and separate sanitation facilities for girls and boys in al l schools in Senegal.
xiii) provision o f school cafeterias, especially in rural and peri-urban areas, with a view to increasing access, and especially, students’ chances for academic success. The various pilots developed will then be evaluated with a view to stabilizing the more relevant and sustainable models.
xiv) school and vocational orientation service will be reformed qualitatively to enable psychologists/counselors to play an effective role. Emphasis will be placed on psychological and pedagogic monitoring to foster the adjustment of learners and clearly identify choices thanks to information o n studies and careers adapted for al l levels.
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V. GLOBAL MANAGEMENT OF THE EDUCATION SYSTEM
5.1 Management of the Educational System
The development o f the sector depends on an overall mechanism o f modern and decentralized management through the formulation, implementation and evaluation of local, regional and departmental education plans (PLDE, PDDE and PRDE), within the context o f a partnership with local governments, deconcentrated school authorities and c iv i l society. The training and supervision o f staff o f deconcentrated planning units will be implemented.
The autonomy and responsibility o f schools and educational establishments wil l be strengthened, especially with respect to the projets d 'e'cole' e t d 'e'tablissement which, through bottom-up planning, informed the development o f the PLDEs, PDDEs, and PRDEs. At al l levels a management system will make results an obligation and the administrative work environment will be modernized. Information and communication will be given special priority. Coordination opportunities will be systematically set up at al l levels.
5.2 Human Resources Management
In the context o f establishing an overall mechanism o f modern and decentralized management, the objective will be to provide the system with high-quality teaching and non-teaching personnel under a policy o f contractualization.
This objective will be supported through the formulation o f a human resources management policy whose objectives are to: optimize personnel management by, inter alia, recruiting the necessary staff on a contractual basis, providing them with adequate training, and communicating systematically with the key stakeholders; support and encourage the IAs and IDENs that manage personnel resources effectively or apply sanctions against those that consciously help to divert them; formulate a pol icy for the transfer o f decision-making powers to deconcentrated and decentralized structures; develop an approach o f management by budgeted positions (allocation o f posts for educational establishments); train staff at the deconcentrated structures; review staff movements in order to rectify the imbalance in the deployment o f teachers; formulate training plans for contractuals, c iv i l servant teachers and central department agents; put in place a more selective and more attractive appointment procedure with specific j o b descriptions for leadership posts; develop a policy for staff retention and psycho-social assistance and put in place an incentive plan integrating, among other things, benefits for teachers who accomplish their tasks satisfactorily.
5.3 Fin an cia1 Management
A sustainable mechanism for the annual public expenditure review through the preparation o f a Medium Term Sectoral Expenditure Framework (sectoral MTEF or CDSMT) aimed at improving Government efficiency and equity with regard to
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Government expenditures on education will become effective in 2005. With respect to recurrent and capital expenditures, the sectoral MTEF will define the aims and objectives, the activities and costs (for each level) in compliance with the national objectives for education and the economy.
The recurrent expenditure for education would represent 40 percent o f the Government’s budget excluding debt servicing.
The share o f local government budgets earmarked for education should increase gradually from 8 percent in 2000 to reach a minimum o f 10 percent in 201 0 in order to meet recurrent and capital costs. At least 49 percent o f the education budget would be allocated to the development of elementary education in 201 0, i.e. 47 percent in 2007. Middle schools will receive 10 percent in 2010, i.e. about 9 percent in 2007. Eight percent will be allocated for vocational and technical training in 2010, Le. about 7 percent in 2007. Resources will be allocated to higher education through a contract between the Government and the universities.
Education will be financed mainly through a partnership between the Government, the local governments, communities, parents, the private sector and technical and financial partners. Procedures to harmonize and simplify the mechanisms linked to external financing will be put in place to strengthen aid efficiency.
VI INDICATORS
Performance indicators related to Access to education
Raise the pre-school enrolment rate f rom 6.5 percent in 2004 to 12 percent in 2007 and 20 percent in 2010 for 3 to 6 year olds
Reduce the illiteracy rate to 10 percent in 20 12
Increase the gross enrolment rate for elementary from 79.9 percent en 2004 to 88.9 percent in 2007 and 100 percent in 20 10.
The proportion o f girls in school should be equal to that o f boys in primary education by 2010 and in middle and secondary school by 201 5 .
Performance Indicators linked to Quality o f education
The threshold for achieving mastery in French, mathematics and science, measured through a standardized evaluation system, initially at the elementary level and then at the middle school level, will be raised by 05 points by 2007. Formative evaluation will also be a primary factor in raising the quality o f learning.
The annual number o f instructional hours for primary will reach 900 by 20 10.
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The enrolment rate in grade 1 (Cl) wi l l reach 100 percent in 2007 and 11 5 percent in 2010.
The elementary school completion rate will go from 48 percent in 2003 to 85 percent in 20 10.
The repetition rate w i l l be stabilized at a maximum o f 5 percent by 2010.
The textbook:pupil ratio o f 02 in CUCP and 05 in the other elementary classes w i l l be achieved in 2007.
Performance indicators linked to Management
The organizational chart o f the central directorates and deconcentrated departments as well as the job descriptions and division o f labor will be formalized and put in place en 2005.
A memorandum o f understanding with local communities will be prepared.
A Medium Term Sectoral Expenditure Framework incorporating the external financing will be available in 2005.
A sectoral review will be held annually with the technical, financial and social partners to evaluate jointly the relevance, results, efficiency and impact o f the PDEF and also to discuss and approve the action plan for the following year.
THE MINISTER OF EDUCATION THE MINISTER OF ECONOMY AND FINANCE
MOUSTAPHA SOURANG ABDOULAYE DIOP
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Annex 7: Financial Management and Disbursement Arrangements
SENEGAL,: Quality Education for All Project - Phase 2
Executive Summary and Conclusion of the Assessment
A Country Financial Management Assessment (CFAA) o f Senegal was conducted in 2003, after which the Government took important steps to address the issues noted during that assessment. To monitor the implementation o f the C F A A Act ion Plan over the past three years, i t created an Executive Secretariat under the Ministry o f Economy and Finance.
The HIPC Country Assessment and Action Plan by the Bank and the IMF in November 2004 showed important improvements in the areas o f public expenditure tracking - notably in the priori ty areas defined in the PRSP, budget preparation and execution.
However, significant progress i s s t i l l needed in internal and external controls o f budget execution and state-owned enterprises. In addition, decentralization and local government finance have not been implemented as planned. Various studies in Senegal show that excessive centralization o f decision-making and lack o f accountability undermine communities’ and local governments’ ability to manage their own affairs. Inadequate inter-governmental fiscal transfers, cumbersome procedures, and a weak tax collection system constitute additional obstacles for local development. Several IDA projects including the existing education project will assist in addressing some o f those deficiencies. I t i s expected that fiduciary responsibilities would be transferred progressively to local governments once IDA ascertains their ability to manage IDA funds.
A Financial Management Assessment (FMA) was carried out as part o f the appraisal mission. The conclusion o f the Financial Management Assessment (FMA) is that the financial management arrangements for the project satisfied IDA’S minimum requirements under OPh3P10.02. Some complementary actions, notably the recruitment o f an external auditor and the updating o f the accounting software, were identified and are summarized in Appendix 1 o f this Annex. Given the strong experience o f the DAGE in managing IDA funds, the disbursement method will be the Interim Un-Audited Financial Statement (IFR)-based disbursement mechanism.
Financial Management Arrangements Staffing and implementation arrangements: The DAGE will be entrusted with the overall responsibility for the procurement and financial management o f the program, in coordination with the DDI at the Ministry o f Finance. Management o f project resources will be under the responsibility o f the DAGE, mainly the Director o f the Div is ion o f Administration and Finance (DAF) assisted by several accountants at the central level and 11 accountants at the IA level. The DAF, as far as financial management is concerned, will have the responsibility for collecting and controlling invoices, managing the project’s bank accounts, keeping the books o f accounts, preparing and producing quarterly Interim Un-Audited Financial Reports (IFR) and make the necessary arrangements for the annual financial audit o f a l l accounts. The key financial staff, i.e. the DAF, the Chief Accountant and the accountants at the IA levels, are already in place and
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have qualifications and experience satisfactory to IDA. The figure below shows the financial management arrangements o f the project.
Accounting policies and procedures: The DAGE will apply the existing private accounting guidelines in Senegal (SYSCOA) issued in 1998. This system i s based on the Plan Comptable traditional in French-speaking countries, with several innovations mirroring principles set in International Accounting Standards. The recent Report on the Observance o f Standards and Codes Auditing and Accounting by the World Bank outlines the major differences between SYSCOA and the International Financial Reporting Standards (IFRS) and the International Accounting Standards. Senegal is working on implementing the recommendations. In the meantime, any major difference between the SYSCOA and the IFRS/IAS and their effect, if significant, will be adequately disclosed in the notes o f the financial statements. The SYSCOA has a three-tiered structure (full reporting basis; simplified basis; cash basis). DAGE will be eligible for the system based on simplified reporting. An administrative, accounting and financial manual was developed by the DAGE and reviewed by IDA. The Chart o f Account will be based on the SYSCOA and will notably integrate the need for regular production o f the IFRs and annual financial statements, including information on the following: total project expenditures, total financial contributions from each financier including the Government, total expenditure on each project component/activity and expenditures and activities at the local level.
Reporting and monitoring: The DAGE will be responsible for the overall reporting o f the project. The DAF o f DAGE will make sure that, o n a quarterly basis, the Interim Un-Audited Financial Reports (IFR) are produced and transmitted to IDA not later than 45 days after the end o f the quarter. The f i rs t IFR shall be furnished to the World Bank not later than 45 days after the end o f the f i rst calendar quarter after the Effectiveness Date, and shall cover the period from the incurrence o f the first expenditure under the project through the end o f such f i rs t calendar quarter. A sample format for the Interim Un-Audited Financial Report (IFR) was discussed and agreed upon during negotiations. On an annual basis, the DAGE will also be required to
82
produce, not later than June 30 o f the fol lowing fiscal year, audited annual financial statements. These financial statements will be subject to periodic audits (see paragraphs o n audits below).
Audit report (DAGE) . Financial Statements . Counterpart funds . . Management Letter Other Donors’ contributions to the pooled account
Information system: The accounting software o f the DAGE should integrate the new components and categories o f the project. I t wil l be updated in such a way as to k i s h all o f the above data, in addition to providing analytical accounting for purposes o f monitoring beneficiaries, and particularly funds transferred to the 1 , s .
Due Date
June 30
Internal audit: In Senegal, the Directorate o f Debt and Investment (OD0 is controlling ex ante al l the expenditures and withdrawal applications before sending them to IDA. Although there isn’t an internal audit body within the DAGE, key internal controls wil l be undertaken. Thus several controls will be undertaken by respective staff o f the DAGE: approval and authorization controls (including for procurement) are already documented in the manual, Bank reconciliation statements will be prepared regularly and on a t imely basis by staff independent o f the payment function, subsidiary records o f fixed assets and stocks wil l be maintained, and al l assets wil l be duly insured. In addition, the external auditors and IDA will pay attention to the continuing adequacy o f and conformity with the project’s procedures by the DAGE during their review.
External audits: An annual audit o f the financial statements will be conducted by external auditors with qualifications and experience satisfactory to IDA. Besides expressing an opinion on the Financial Statements in accordance with International Standards on Auditing, the auditors wil l be required to comment on whether the counterpart funds and the contributions o f the other donors to the pooled account have been provided regularly and used in accordance with the Financing Agreement and with the Memoranda o f Understanding signed between the donors. In addition to the audit report, the auditors wil l be expected to prepare Management Letters giving observations and comments, and providing recommendations for improvements in accounting records, systems, controls and compliance with financial covenants in the IDA agreement. The auditors wil l be required to express an opinion o n compliance with the laws and regulations, particularly regarding other donors’ contribution to the pooled account. The audit reports for the fiscal year ended must be submitted not later than June 30 fol lowing the end o f that fiscal year. The table below summarizes the auditing requirements:
Credit conditions and covenants: The effectiveness condition o f the Credit related to financial management is the recruitment o f an external auditor with qualifications and experience acceptable to the Association.
Country issues and Financial Risk Assessment At the country level: Government has givenpriority to improvements in the areas o f internal and external controls as wel l as in local governance finance reforms. A Multi Donor Trust Fund (MDTF) to implement the reforms was set up.
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At the project level: Financial management staff have been appointed o n a competitive basis, and IDA finding i s fol lowing special mechanisms to mitigate fiduciary risk. IDA projects are invariably audited by independent and competent auditing firms. The overall r isk rating at the project level i s Moderate thanks to the capacity built at the Ministry o f Education.
Flow of funds The f low o f finds is described in Appendix 1. I t will include: . Two Designated Accounts (Designated Account A and B) at the central level to be opened
in a commercial bank acceptable to IDA and managed by DDI, Designated Account B will be used to finance activities related to capacity building. Designated Account A will be used to finance other activities. The Designated Account B will be pooled with other donors, the Agencefranqaise de De'veloppement (AFD), among others; Two Sub Designated Accounts (sub accounts A and B) at the central level to be opened in a commercial bank acceptable to the World Bank and managed by the DAGE. Sub-account B will handle pooled finds for capacity building activities. 11 regional accounts at the regional levels open in a commercial bank acceptable to IDA and managed by IA.
.
The table below specifies the IDA accounts to be opened at the various levels:
. Given the strong capacity o f the DAGE, reporting on the use o f funds for the designated account and the sub accounts and al l disbursements would be based o n quarterly Interim Un- Audited Financial Reports (IFR). Reporting on the use o f funds for the school grants (projets d'e'cole/d'e'tablissement) initiative at the regional level will be based on a list o f expenditures. Payments to schools will be made in tranches. The approval mechanism and reporting format are included in Procedures Manual approved by IDA.
.
Disbursements Arrangements
Disbursement methods The disbursement method will be the Interim Un-Audited Financial Report (IFR). Fund flows under the project are expected to take place, as follows: IDA will authorize a six-month advance to the designated account based o n the procurement/disbursement plans. Funds would be used
84
to: (i) honor eligible expenditures, (ii) and make advances to the sub-designated account and to the regional accounts. Each quarter, the project would prepare and transmit to IDA the IFR together with fund requests and IDA reconciliation statements as wel l as procurement/disbursement plans. IDA would review the IFR and release the amount requested.
Minimum value o f applications The minimum value o f Direct Payment and Special Commitment will be FCFA 400 million.
Advances Type of Designated Accounts (subsection 5.3): one pooled account for the capacity building component and one segregated account for a l l other project expenditures Currency of Designated Accounts (subsection 5.4): FCFA Financial institution at which the Designated Accounts will be opened (subsection 5.5): a commercial bank acceptable to the Association.] Ceiling (subsection 6.1): Forecast for two quarters as provided in the quarterly Interim Financial Report ;
Reporting on use of credit proceeds Supporting documentation should be provided with each Withdrawal Application as set out below: e For reporting eligible expenditures paid from the Designated Accounts:
o o
For requests for reimbursement o
For direct payment o
e For special commitment o Letter o f credit o Copy o f the contract
IFR in a form acceptable to IDA L i s t o f payments against contracts that are subject to IDA’S prior review
IFR in a form acceptable to IDA
Records evidencing eligible expenditures, e.g., copies o f receipts, supplier invoices.
The project would submit bank statements and a reconciliation o f the Designated Account and the Sub Designated Accounts, together with the withdrawal applications, o n a quarterly basis. All supporting documentation would be retained at the DAGE and must be made available for review by periodic Wor ld Bank review missions and external audits. The format of the quarterly Interim Un-audited Financial Report was discussed and agreed upon during negotiations and will be attached to the Disbursement Letter.
Counterpart funding As IDA has established Country Financing Parameters for Senegal, the project will finance 100 percent o f expenses net o f value-added taxes (VAT). This being the case, Government must make al l the necessary arrangements to ensure the timely mobilization o f the counterpart funds necessary for the attainment o f the objectives o f the program, including funds to accompany the IDA project. The contribution o f Government will consist o f fiscal revenues (VAT contribution) and o f parallel financing o f expenditures.
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Disbursements by category The table below sets out the expenditure categories to be financed out o f the credit proceeds, based on the components o f the project as per Government’s expressed preference. The allocations for each expenditure category are the following:
9,500,000 1. Improving access and retention (Part l .A and l.B). 100% excluding taxes
3. Strengthening management o f the education system (Part 3 except 3.D)
4. Grants and support to deconcentrated levels (Part 1.C, 2.A and 2.B)
5. Operating costs (Part 3.D)
7. Unallocated I 3,935,000
500,000 100% excluding taxes
7,500,000 100% of amounts disbursed
1000,000 100%
TOTAL AMOUNT I 30,000,000
6. Reimbursement o f the Advance (PPF)
Supervision plan On a regular basis (at least once per year), the system would be reviewed and assessed. The IFR would be reviewed as we l l as the annual audit reports.
Amount payable pursuant to Section 2.07 o f the General
Conditions 5 6 5,O 0 0
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APPENDIX 1: ACTION PLAN
Revortinq
Accountinp software
External Audit
Draft Format and content o f the Interim Un-audited Financial Report (IFR)
I Review by IDA
I Agreement on the format and content o f the IFR
Updating the accounting software
Recruitment o f an auditor satisfactory to IDA
. DAGE (Ministry o f Education)
rn IDA
. DAGEandIDA
DAGE
General Inspection of Finance
rn June30 (completed) . July 7 (completed)
Negotiations (completed)
Effectiveness (completed)
Effectiveness (pending)
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*. *
B
........ : : . . . .
n
. . . . ........
.I
b B
\
...........
. '
B
9 c/1
Appendix 2: Risk Assessment and Internal Control
I H I s J M J L I Comments Risk Assessment
1. Corruption l. Poor governance 3. Weak Judiciary
[nherent Risk ‘nherent risk is the susceptibility of the project financial management system to factors arising from the environment in which i t operates,
X X X reforms.
The CFAA action plan i s under implementation and the government has created an executive secretariat to oversee the implementation o f the
1. Corruption l. Poor governance 3. Weak Judiciary
X X X reforms.
The CFAA action plan i s under implementation and the government has created an executive secretariat to oversee the implementation o f the
$. Weak Mgmt capacity Dverall Rating Inherent Risk Control Risk Zontrol risk is the risk that the xonornically and eflciently ai
roject ’s accounting and internal control framework are inadequate to ensure project funds are used f i r the
a1
urposl
X
-
ntenc. -
- X
X
X
X
- MOI
- -
-
Qr
X
X -
- X
X
st
. .
that the use of funds is p roper6 reported. Implementing entity (DAGE) has considerable experience in managing IDA funds The f low o f funds proposed i s the same as what was used during f i r s t phase. N o major issue i s anticipated. The Recipient shall: a) finance, f rom i t s budget resources, the construction and equipment o f at least 1,500 classrooms, in the elementary level, per year during the implementation o f the project; b) allocate to the education sector at least 40% o f i t s recurrent budget excluding debt service and “dipenses communes”, in each o f i t s annual budgets during the implementation o f the project; c) for each classroom constructed under the project in middle schools, construct, under financing from i t s own budget, one classroom at the same level, and ensure that adequate water and sanitation services are available for said schools; d) each year during the implementation period, spend at least 1 b i l l ion FCFA from i t s annual budgets for the acquisition o f textbooks; e) each year during the implementation o f the project, allocate at least FCFA 700 mi l l ion in i t s annual recurrent budget for support to schools; and f ) no later than thuty days after the end o f each quarter during the implementation o f the project, furnish to IDA al l necessary information on the execution o f i t s budget for the education sector (including budget data on central and deconcentrated levels) Financial and Accounting staff have satisfactory qualifications and experience. The accounting manual was developed and reviewed by IDA during the f i r s t phase. Internal audit function does not exist. However, key internal control mechanisms (Approval and authorization controls, Bank reconciliation statements . . .) are included in the manual. IDA will pay attention to the internal control system during supervision missions and the review o f the letter o f comments o f the external auditor. An external auditor with experience and qualifications acceptable to IDA will be recruited prior to Credit’s effectiveness. The reporting requirements o f basic accounting data including the annual financial statements are already customized in the accounting software. The format and content o f the IFR was agreed upon during negotiations. The existing accounting software o f the DAGE i s satisfactory. The overall cont ro l risk i s Moderate because the FM arrangements were strengthened dur ing the f i r s t phase o f the project.
L - Low
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Annex 8: Procurement Arrangements SENEGAL: Quality Education for All Project - Phase 2
A. General Background - National procurement system and ongoing reforms In 2002, Senegal adopted Decree No 2002-550, establishing a new procurement code. A Country Procurement Assessment Review (CPAR) for Senegal was carried out f rom September 2002 to March 2003 o n the basis o f which a national action plan was prepared. A new Public Procurement Code has recently been prepared with the assistance o f the Bank, which was adopted by the Government on March 16,2006. The Bank reviewed the code and found that the existing procurement rules include appropriate provisions, but that n o standard bidding documents are available. The national action plan i s under implementation and includes the following: (i) decentralization o f procurement responsibilities to l ine ministries, local governments and public entities; and (ii) setting up o f a legal framework for delegation o f project management to private firms. So far, no special exceptions, permits, or licenses need to be specified in the Financial Agreement for International Competitive Bidding (ICB), since Senegal's procurement practices allow the Bank procedures to take precedence over any contrary provisions in local regulations.
In general, Senegal's procurement laws and regulations do not conflict with IDA guidelines. N o special exceptions, permits or licenses need to be specified in Credit documents since, as stated above, IDA procedures take precedence.
Use of Bank Guidelines Procurement for the proposed project would be carried out in accordance with the World Bank's "Guidelines: Procurement Under BRD Loans and IDA Credits" dated M a y 2004; and "Guidelines: Selection and Employment o f Consultants by World Bank Borrowers" dated M a y 2004, and the provisions stipulated in the Financing Agreement. The various items under different expenditure categories are described in general below. For each contract to be financed by the credit, the different procurement methods or consultant selection methods, the need for pre-qualification, estimated costs, prior review requirements, and time frame are agreed between the Borrower and IDA in the Procurement Plan. The Procurement Plan will be updated at least annually or as required to reflect the actual project implementation needs and improvements in institutional capacity. The procurement process and the Standard Bidding Documents (SBD) that wil l be used by the executing agencies wil l be wel l defined in the Project Implementation Manual (PIM), which wil l include a Procurement and Financial Management Manual.
Advertising A General Procurement Notice (GPN) wil l be prepared and published in United Nations Development Business (UNDB), in Development Gateway (dgMarket), and in at least one national newspaper after the project is approved by the Board, and before effectiveness. The GPN would show al l International Competitive Bidding for works and goods contracts and al l consulting services involving international f i rms. Specific Procurement Notices for a l l goods and works to be procured under I C B and Expressions o f Interest for a l l consulting services to
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cost the equivalent o f US$200,000 and above would also be published in the UNDB, dgMarket as wel l as in the national press.
B- Procurement methods and procedures
Procurement of Works: Works procured under this project would include construction and rehabilitation o f schools and classrooms. The procurement wil l be done using the Bank’s Standard Bidding Documents (SBD) for al l I C B and National SBD agreed with or satisfactory to the Bank.
Procurement of Goods: Goods procured under this project would include: office equipment; supply o f textbooks and other didactic materials; h i t u r e for schools, etc. The procurement will be done using the Bank’s SBD for al l I C B and National SBD agreed with or satisfactory to the Bank.
Procurement of non-consulting services: Non-consulting services to be financed under the credit will include building, office and equipment maintenance; transport; insurance, etc. Regarding the size o f these types o f contracts, the procurement process wil l be conducted under procedures acceptable to the Bank
Selection of Consultants: Consultant services to be financed under the credit will include design and supervision for works, national and international training for teachers, pedagogic advisers, inspectors, school heads and key decision makers in education sector. Shortlists o f consultants for services estimated to cost less than US$lOO,OOO equivalent per contract may be composed entirely o f national consultants in accordance with the provisions o f paragraph 2.7 o f the Consultant Guidelines, provided that a sufficient number o f qualified firms are available at competitive costs. However, if foreign firms have expressed interest, they wil l not be excluded from consideration. The Standard Request for Proposals (RFP), as developed by the World Bank, will be used for requesting proposals, and for selection and appointment o f consulting firms. Simplified contracts may be used for short-term assignments.
Operating Costs: The Credit would finance the operating costs o f the Ministry un i t s and remuneration o f contractual staff providing expertise in various directorates. A Contract Management Agency, if one i s selected, or another privatehon-governmental entity that would implement the construction program, would also be financed under the credit. Operating costs would be covered using the Ministry’s administrative procedures that were reviewed and found acceptable to IDA.
Special requirements for this project Procurement process for component related to quality (school grant) of the project For these activities conducted by local communities and community-based organizations, the procurement process will be described in the Project Implementation Manual and the Procedures Manual will define the responsibilities in the procurement process.
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The procurement procedures and SBDs to be used for each procurement method, as wel l as model contracts for works, goods, services (other than consulting services) and consulting services, would be presented in the Project Implementation Manual.
Use of the national procurement code for NCB and shopping procedures National Competitive Bidding (NCB), advertised locally, will be carried out in accordance with Senegal’s procurement laws and regulations acceptable to IDA, provided that they assure economy, efficiency, transparency, and broad consistency with key objectives o f the Bank Guidelines. For N C B procedures, the fol lowing principles have been agreed upon: (i) bids should be advertised in national newspapers with wide circulation; (ii) any bidder i s given sufficient time to submit bids (4 weeks); (iii) bid evaluation and bidder qualifications criteria are clearly specified in the bidding documents; (iv) no preference margin is granted to domestic manufacturers; (v) eligible f i r m s are not precluded from the competition; (vi) prior to issuing the first call for bids, a draft standard bidding document i s submitted to and must be deemed acceptable to IDA; and (vii) the procedures shall also include the publication o f the results o f bid evaluation and o f the award o f the contract, and provisions for bidders to protest.
During appraisal, the team identified the most important clauses o f the national procurement code that are not applicable in an IDA-financed project (see table in Appendix 1 to Annex 8) ; the list o f clauses wil l be updated whenever necessary (if the said code i s modified).
C. Assessment of the agency’s capacity to implement procurement
Procurement activities wil l be carried out by the DAGE, as was successfully done during the first phase. The Directorate i s staffed by a Director, a Financial Management Specialist, an Operations and Monitoring Officer, a Procurement Specialist. The Procurement Unit is staffed by a procurement team composed o f a specialist and two assistants who were trained in procurement during the first phase o f the project. All staff actively participated in the appraisal o f the program. The Procurement Specialist’s responsibilities include preparation and execution o f the procurement plan, preparation o f bidding documents or request for proposal, monitoring o f the bidding process, assistance to the team in the evaluation process and contract award, and follow-up o n contract management and reporting.
An assessment o f the capacity o f the Ministry o f Education to implement procurement actions for the project has been carried out by the Senior Procurement Specialist in the Dakar Country Office o n June 16,2006. The assessment reviewed the organizational structure for implementing the project and the interaction between the project staff responsible for procurement and the Min is t ry ’s relevant Directorate for administration and finance.
The assessment showed that the Procurement Specialist and his team have significant experience with Wor ld Bank procedures and are comfortable in applying them. That experience has been further strengthened by the team’s heavy involvement in procurement activities during the first phase o f the project
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The key issues and risks concerning procurement for implementation o f the project have been identified and include: (i) the involvement o f local governments in the procurement process for 60 community-based projects; (ii) delaying the contract award process due to contract approval procedures; (iii) unclear division o f responsibilities between the DAGE procurement team and the Procurement Unit within the School Construction and Equipment Directorate (DCES); and (iv) involvement o f the Procurement Specialist in the contract management process rather than just for advice purposes in the interpretation o f clauses.
The corrective measures that have been agreed with the Borrower to mitigate this risk are the following:
The Procurement Specialist wil l assist and advise local governments and CBOs in the procurement process for community-based projects and wil l monitor execution o f procurement plans o n behalf o f the DAGE and the local governments, to ensure that the deadlines to acquire the goods and services are respected. H e will also advise these entities in al l procurement tasks and matters, in particular in verifying that the contracting authorities observe the rules. T o this end, the Procurement Specialist must keep himself h l l y informed o f procurement activities at a l l times, so that he can react promptly if necessary. The Director o f the DAGE will make every effort to avoid situation o f misunderstanding or conflict between the project Procurement Specialist and the one within School Constructions and Equipment Directorate. All procurement under the IDA credit wil l be handled by the procurement team in the DAGE. The Procurement Specialist should give up other functions, particularly those related to contract execution and payment, to avoid any possible conflicts o f interest. H i s role at this stage wil l be l imited to advising the team in exceptional cases for dispute resolution purposes.
The overall project r isk for procurement i s low.
C. Procurement Plan
The Borrower, at appraisalhegotiations, developed a procurement plan for project implementation that provides the basis for the procurement methods. This plan was agreed upon between the Borrower and the project team on July 6,2006 and is available at the DAGE. I t wil l also be available in the project database and on the Bank’s external website. The Procurement Plan wil l be updated in agreement with the project team annually or as required to reflect the actual project implementation needs and improvements in institutional capacity.
D. Frequency of Procurement Supervision
In addition to the prior review supervision to be carried out by the IDA team, the capacity assessment o f the Ministry o f Education recommends that two supervision missions should visit the field per year to carry out a post review o f procurement actions.
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M a e '2 f Be 0
rcr 0
L 4
I
0 0 w m fft
Appendix 1 to Annex 8:
The following are the clauses in the Government Procurement Code that are not applicable to IDA-financed activities:
For those contracts awarded according to methods other than open or l imited international competitive bidding, and in the event that a shortlist o f consulting f i r m s has only f i r m s based in Senegal, the conditions outlined in the Government Procurement Code are applicable provided that the modifications in the attached table are taken into account. These modifications would be updated each time the Code i s modified.
No.
7 and 10
31 and 34
42 to 46
50
55
75 to 79
80 and 193
Title or subject of the clause Possibility o f compensating entrepreneurs, suppliers and consultants to resolve those services that had been ordered and executed without respecting normal budget and procurement procedures. Administrative documents (other than the offer guarantee) and a certificate classifying entrepreneurs in BTF’ are to be provided in order to participate in bids 10 percent preference given to national bidders Submission deadline o f 15 days in exceptional cases
Procedures for consultant selection
Conditions for signing a contract or selecting a consultant through sole sourcing or direct contracting
Thresholds for awarding contracts after a procedure “Request for Information and Prices”
Article 2 o f Decree No. 2003-701 o f 26 September 2003 on the modification o f the Government Procurement Code
Comments on modifications
Not applicable
No t applicable to those bidders not based in Senegal; regarding the certificate o f classification, the qualification criteria w i l l be defined in the bidding documents
No t applicable
No t applicable
Indicate that the shortlist: (i) should include, to the extent possible, six firms and (ii) should not include more than two firms from the same country if the contract i s greater than or equal to US$lOO,OOO. Al l exceptions to this ru le should be submitted to IDA for review and opinion.
Acceptable wi th a no-objection f rom IDA
Thresholds are not validated; for a l l expenditures below the threshold o f a contract determined in articles 192, 194 and 195, a procedure o f Request for information and prices i s necessary
The clause regarding the acquisitions o f fuel on a non-competitive basis i s not applicable.
The above information i s provided in French below:
Pour les march& pass& selon des mkthodes autres que 1’Appel d’Offi-e International ouvert (AOI) ou restreint (AOIR) et lorsque la liste restreinte de consultants ne comporte que des firmes installCes au SCnCgal, les dispositions du code national des march& publics pourraient Ctre applicables sous rCserve de l a prise en compte des modifications figurant dans le tableau ci- dessous. Ces modifications seront mises ii jour chaque fois que le code subira une modification
96
N o
7 et 10
31 et 34
42 A 46
50
55
75 a79
80 et 193
Titre ou obiet de la clause
Possibilitks de compensation des entrepreneurs, fournisseurs et consultants pour rtgler des services qui ont 6tt commandks et executts sans respect des prockdures normales de budgktisation et de Dassation des marches
Pitces administratives ( non comprise la garantie d’offie ) et certificat de classement des entrepreneurs du BTP 21 fournir pour participer aux appels d’offies
Prtftrence de 10 % A accorder aux soumissionnaires nationaux
Dklai de soumission de 15 jours en cas d’urgence
Proctdure de selection d’un consultant
Conditions pour passer un marcht ou sklectionner un consultant de grt a grt ou par entente directe
Seuils pour passer un marcht aprts une proctdure de Demande de Renseignement et de Prix
Article 2 du dtcret N o 2003-701 du 26 Septembre 2003 portant modification du code des marchts
Commentaires ou modifications
Non applicable
Non applicable a des soumissionnaires non installts au Stntgal ; e n ce qui concerne l e certificat de classement, les crittres de gualification seront prtcists dans le DAO
Non applicable
Non applicable
Prkciser que la liste restreinte (i) devra comprendre dans la mesure du possible six cabinets et (ii) ne doit pas comporter plus de deux cabinets d’un mEme pays s i le contrat atteint ou dkpasse l’kquivalent de U S $ 100,000 ; toute dtrogation a cette rkgle devra Etre soumise a la Banque pour examen et avis
Acceptable avec l’avis de non objection de la Banque
Les seuils ne sont pas valides ; pour toutes les dkpenses en dessous du seuil d’un march6 fix6 aux articles 192,194 et 195 une prockdure de Demande de Renseignement et de Prix est nkcessaire
L a clause relative aux acquisitions de carburant sur une base non compttitive n’est pas applicable
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Annex 9: Economic and Financial Analysis
SENEGAL: Quality Education for All Project - Phase 2
Economic Analysis
This annex summarizes the economic analyses that were conducted during the preparation and appraisal o f the second phase o f the Quality Education for al l Program (covering the period 2006-2009), which supports Senegal’s 1 O-year national education development plan (PDEF). This annex provides information about the l inks to economic and sector work, and outlines: (i) the economic and social impact o f investment o n education; (ii) the recent outcomes o f the education sector; (iii) the financing o f the education sector; (iv) the efficiency and equity in the distribution o f spending in education; and (v) the objectives and sustainability o f education development.
Links to Country Assistance Strategy (CAS) and Poverty Reduction Strategy Paper (PRSP) The Country Assistance Strategy o f Senegal supports two main pillars o f the PRSP: (i) wealth creation; and (ii) capacity building and social service delivery. The PRSP clearly specifies that education i s a priori ty area in the delivery o f basic social services. The education sector operation is directly l inked to the second pillar and contributes to the achievement o f the Mil lennium Development Goals related to universal primary completion and gender parity as outlined in the l ow case scenario o f the CAS. The PDEF, which sets out the Government’s education program up to 2010, i s the instrument developed by Government to improve education service delivery, and build and strengthen the stock o f human capital. This ten-year program was initiated by the Government in collaboration with donors, c iv i l society, and the institutions and agencies o f the education sector with the aim o f spurring quantitative and qualitative development o f the education and training system.
Links to sector work Economic and sector work informed Government policies, strategies and priorities. With the assistance o f DA-f inanced studies, conducted in particular by the national Applied Economics Research Center (CREA), the Ministry prepared a comprehensive education sector analysis in 2004. In addition, there was an annual economic and financial report throughout the first phase, which provided complementary information on the state o f the sector. Additional analyses have been done to assess education externalities, a list o f which can be found in Annex 12.
The education sector analysis and the 2006 economic and financial report point out some issues to address in order to achieve the MDGs, including the need to: (i) improve learning outcomes by improving the motivation and performance o f teachers, and by providing basic school resources -- such as adequate facilities and textbooks -- as wel l as delegating responsibility to the schools so that they manage their own resources; (ii) construct additional middle schools in rural areas, notably in Kolda and Kaolack regions, to enable elementary students to continue on to subsequent cycles, (iii) reduce drop-out and repetition, notably by focusing o n gender issues (girls are more l ikely to drop out o f school than boys); and (iv) improve the management o f the
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education sector. Longitudinal studies (PASEC 2004) o n repetition practices and outcomes in Senegal and in other Francophone sub-Saharan Afr ican countries have also pointed to the crucial role teachers play in determining overall education quality as measured by their students’ learning outcomes.
French-Arab and Koranic Schools
Secondary Education and Plus
Economic and social impact of investments in education
0.2615 2.76 0.006*** 1.2989
0.3262 3.14 0.002*** 1.3857
Impact on agricultural development The level o f education has a direct impact on productivity in agriculture. Government, with the support o f IDA, i s implementing an Agricultural Services and Producer Organizations Project (PSAOP). This program aims at promoting greater adoption o f techniques and technologies that improve agricultural productivity by transferring to private sector and producers’ organizations al l functions that they believe will objectively achieve their goals. The Producer Survey shows that poor households are more interested in participating in producer organizations (POs) than richer ones, which in turn help them improve their productivity and the commercialization o f their products.
Liv ing conditions o f household
Social capital
0.0345 1.22 0.224 1.0351
0.0417 3.18 0.00 1 *** 1.0426
Household Income
Natural Asset o f the Household
Age o f the Head o f Household
Maior activitv o f the Head o f the Household
0.0029 1.38 0.167 1.0029
0.1916 4.29 o.ooo*** 1.2112
0.0003 0.3 1 0.76 1.0003
0.0066 1.72 0.086** 1.0066
Physical and financial asset o f the household I -0,004 I -2.11 I 0.035*** I 0.9960 I Constant 0.2097 I 1.88 0.06 1.2333
Concerning the participation o f households in POs, people who attended school have a better chance o f reaping benefits offered by the producers’ organizations than those who have not been to school. The analysis o f the marginal effects shows that heads o f households with a secondary education level or higher have the highest level o f participation (1.38). Then come heads o f households with primary education level (1.3), and finally heads o f household with Franco- Arabic and Koranic education (1 -29).
Regarding income gains, the level o f education o f the PO management committees has a direct impact on the incomes o f POs. POs that have presidents with primary education gain 2.55 percent more income than those that have presidents who have not had any primary education. If the president has completed secondary education, the PO can gain 6.41 percent more (see table 9.2 below).
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Table 9.2: Level of Education of the President and the Performance
Number o f Training
Year o f Creation
Legal status
Agricultural Equipments
Constant
1.1076 2.44" * * 0.018
0.2193 2.51*** 0.015
0.3245 0.54 0.594
2.4423 2.57*** 0.013
-444.5 086 -2.5 1 0.015
Social impact Impact o f mother's education on the risk that a child will have growth delays The analysis o f the data from the Mult iple Indicator Cluster Survey (MICS) done by the Directorate o f Statistics in 2000 showed a correlation between chi ld nutrition and the mother's level o f education. The findings show that reducing the mother's level o f education by one year resulted in the likelihood that a chi ld has a growth risk o f 2.83 percent (Graph 9.1 below compares growth delays with the mother's leve l o f education and the age o f the child. The analysis o f urban and rural areas shows that this risk is higher in rural areas than in urban ones when education level i s kept constant.
Graph 9.1: Development of risk for a child to have a growth delay according to his age and the number of years in school o f the mother.
0.25 I I
0.2
0.15 Q 3 m u)
i2 0.1
0.05
0 0 5 10 15 20 25 30 35 40 45 50 55 61
Age d e I ' e a f a n t e n m o l l
-A- No edu ++ Rim + Low secon --e Secondair et+
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Recent achievements in education
Early childhood development (ECD): Early childhood development (ECD) centers in Senegal enroll children between 3 to 5 years o f age. At the end o f the 199Os, E C D enrollment was increasing by only 1,000 to 2,000 students per year. During the first phase, the E C D enrollment rate increased by 210 percent, from 2.7 percent in 2000 (with 25,392 students) to 6.8 percent in 2005 (with 78,812 students). This was primarily due to accelerated construction o f E C D centers during that period.
Primary school: During the first phase, Senegal implemented its pol icy for expanding access to primary education, including accelerated recruitment o f teachers and construction o f classrooms to meet the increasing demand. Gross enrollments in primary increased from about 68 percent in 2000 to 82.5 percent in 2005. A s o f 2005, girls represented 48.6 percent o f the 1,444,163 students in primary schools. The CI (grade 1) admission rate increased f rom 8 1 percent in 2000 to 91.1 percent in 2005. This was primarily due to the expansion in the network o f primary education facilities.
The primary school completion rate improved during the f i rst phase, f rom 36.3 percent (3 1.6 percent for girls) in 2000 to 53.9 percent (47.5 percent for girls) in 2005. The repetition rate stagnated during the f i rst phase o f QEFA (it was 13 percent in 2000 and 12 percent in 2005), and the target o f 10 percent was not reached. The results o f learning assessments in French and mathematics conducted in grade 4 (CE2) by the National System for Assessing Educational Performance (Systime National d ’Evaluation des Rendements Scolaires, or SNERS) showed improvements in students’ achievement in both subject areas between 1996 and 2002.
Middle schools: During the f i rst phase, the development o f middle schools (or coll8ges), which should have led to improved transition rates between primary and middle schools, was conducted in a disorderly manner. Although the transition rate from grade 6 (CM2) to grade 7 (68me) increased from 38.9 percent in 2000 to 49 percent in 2005, these improvements were achieved without any improvements in the quality o f school infrastructure; most o f the new schools had been created either in temporary structures in rural areas or in classrooms that had originally been planned for primary schools.
Financing of the education sector
Macroeconomic and social trends From 2000 to 2005, Senegal’s overall economic and financial situation was favorable to the development o f the country’s education sector. Table 9.3 summarizes the GDP growth rate, population, GDP per capita, and aggregate expenditures from 2000 to 2005.
Three positive developments characterized the evolution o f public finance during the period 2000-05: (i) GDP grew at an average rate o f 5 percent annually; (ii) Government revenues increased substantially, (iii) debt service was kept at an affordable level; and (iv) public expenditures were modified to increase the share allocated to investments. Between 2000 and 2005, Government’s ordinary revenues, excluding donations, increased from FCFA 562,300 bi l l ion to FCFA 841,200 billion. State resources as a percent o f GDP, which represented 21 percent in 2000, increased to 49.5 percent by 2005. Improvements in tax revenue in the context o f strong GDP growth and the dismantling o f an important tariff contributed to these developments. The decision to harmonize taxation within the West Afr ican Economic and Monetary Union ( WAEMU), which came into effect in September 2001, also contributed to this evolution.
Debt service Recurrent domestic expenses excluding debt service Domestic capital expenditures
Yet even with these changes, Senegal continued to depend heavily o n outside assistance to finance i t s capital expenditures, Public expenditures by the Government o f Senegal increased on average between 13.2 percent and 13.9 percent o f GDP between 2000 and 2005. During this period, the share o f domestic resources in investments, which accounted for approximately 20 percent o f the total expenditures in 2000, grew to 27 percent in 2005. More than two-thirds of recurrent expenditures are for the payment o f the wages (71 percent), the relative weight o f which steadily increased during the past years.
During the first phase, Senegal devoted a large portion o f i t s public expenditures to education. Ninety-one percent o f total expenditures on education were financed with internal budgetary resources during this period. In 2005, the national education budget,was equivalent to 4.9 percent o f GDP -- an increase from the 3.4 percent o f GDP in 2000 (Table 9.4). This was a much higher level o f spending than other countries in the region, as the highest performing ones spent only 3.8 percent o f GDP on education on average.
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Recurrent expenditures (FCFA bil l ion)
Investment expenditure (FCFA bil l ion)
99,376 102,278 108,508 127,267
12,274 22,684 34,952 45,677
National financing
External financing
I 105,100 I 111,591 I 120,108 I 142,267 Tota l expenditures o n national financing (FCFA bil l ion)
5,724 9,313 11,600 15,000
6,550 13,371 23,352 30,677
Recurrent education expenditures as a percentage o f recurrent expenditures 1 27.2% 1 21.0% 1 24.8% I 26.3% excluding debt
Tota l expenditures (FCFA bil l ion)
Recurrent education expenditures as a percentage o f government domestic I 17.7% 1 17.0% 1 16.3% 1 17.7% revenue
111,650 124,962 143,460 172,944
I 3.4% I 3.3% I 3.5% I 3.8% Tota l national education expenditures as a percentage o f GDP
1.60 Technical and vocational training
5 2004
161,360
39,888
2.30 3.32 3.10 3.30 3.10
14,490
25,398
Higher education
Other levels
Central administration
Total
20 1,248
175,850
25.60 26.09 26.53 23.80 26.40 23.80 NA NA 0.20 0.30 0.20 0.30
10.40 11.90 8.54 10.20 8.50 5.24
100.00 100.00 100.00 100.00 100.00 100.00
31.3%
20.9%
4.4%
196,084
15,930
213,349
35.7%
23.3%
4.9 Yo
Government recurrent education expenditures as a percentage o f the i t s total recurrent expenditures excluding debt service increased from about 27 percent in 2000 to about 35 percent in 2005. The distribution o f recurrent expenditures by level o f education from 2000 to 2005 i s shown in Table 9.5. During this period, capital expenditures in education increased by 201 percent.
Table 9.5 Percentage Distribution o f Recurrent Education Expenditures by Level o f Education, 2000-2005
Elementary I 38.10 I 38.38 I 42.21 I 48.10 I 42.00 I 45.04 Middle 1 13.20 I 12.09 I 10.65 I 4.50 I 10.60 I 8.44 Secondarygeneral I 10.40 1 8.50 I 7.54 I 9.60 I 7.50 I 13.39
Regarding the percentage o f the recurrent education expenditures devoted to primary education, Senegal’s performance i s about average in comparison with other French-speaking countries in the region (Table 9.6 below).
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Table 9.6 Percentage Distribution of Recurrent Education Expenditures by Level of
Household contributions to education expenditures Household contributions to education are generally for recurrent expenditures such as the payment o f the registration fees, school and transport expenses, and the cost o f purchasing textbooks and school stationery. Data from the first and second Senegalese Household Survey (I 'Enqukte Sbnbgalaise aupr2s des Mbnages, ESAMl and ESAM2) conducted in 1994195 and 2002, respectively, show that the average household expenditure o n education declined from FCFA 44,724 in 1994/95 to FCFA 29,840 in 2002 (a 49.9 percent drop), and the average household expenditure per pupil declined from FCFA 16,385 to FCFA 14,393 (12.15 percent).
Efficiency and equity in the distribution of spending on education Efficiency in spending on education: Unfortunately, Senegal's education system suffers from significant inefficiencies, and during the first phase, the situation worsened. As shown in Table 9.7, the average duration o f schooling in Senegal in 2005 (6.7 years) was generally below the average (8 years) for the 13 other countries listed. Yet public expenditure on education as a percentage o f GDP was relatively higher in Senegal (4.9 percent) than the average for the other countries (3.8 percent). This situation resulted in a lower index o f total efficiency (defined as the average duration o f schoolinglpublic expenditure o n education as a percentage o f GDP) for Senegal. In fact, Senegal had a lower indicator o f total efficiency (1.35) than al l o f the countries listed in the table except Zimbabwe (0.88) and Niger (1.21).
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I 2001 I 5.3 I 3.3 I 1.61 I 2005
South Africa Benin
6.7 4.9 1.35 12.9 5.8 2.22 7.1 3.3 2.15
I Cameroun I 9.3 I 3.4 I 2.74 I Ghana Guinea-Bissau Equatorial Guinea
7.5 4.2 1.79 5.5 2.3 2.39 9 2.2 4.09
I Maurice I 12.4 I 3.3 I 3.76 I Mozambique
Chad Niger
5.4 2.5 2.16 2.9 2.4 1.21 5.3 2 2.65
Togo Zambia Zimbabwe Average of 13 countries
Discussions with teachers in the PASEC studies reveal that the vast majority o f them believed that repetition i s an essential tool to ensure that less able students get a second chance to acquire the basic knowledge necessary to fol low and benefit f rom the instruction at higher levels. However, the same studies showed that high repetition rates impose considerable costs on the education system and cannot substantially increase student performance.
10.4 4.9 2.12 6.9 2 3.45 9.8 11.1 0.88 8 3.8 2.11
A cost effectiveness simulation considers the expected advantages arising from a reduction in the repetition rate from 11 percent to 5 percent, and in the dropout rate f rom 11 percent to 2 percent, as presented in the table below,.
Continued expansion in access only
Completion rate 51% 11% 11% 8.62
Dropout rate per grade on average Repetition rate per grade on average Average time invested per graduate (Ya)
Investment in quality
85% 2% 5%
6.8 1 Average time for graduates to complete primary education (Yb) Loading factor to adjust for dropping out ( Y m ) Public unit spending per year Total (public) cost o f producing one graduate
Table 9.8 below indicates that Senegal’s public expenditures per pupil in primary education increased from FCFA 38,425 in 2000 to FCFA 69.216 in 2005-double the unit cost o f the Asian
6.93 6.32 1.24 1.08 .
69,2 16 69,216 596,642 471,361
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countries during 1990s. At the middle school level, the sharp increase in personnel combined with a reduction in expenditure was the cause o f the fal l in the unit cost.
Educational level
Per student expenditures o n primary school represents more than 16 percent o f the GDP per capita, placing Senegal among the countries with the highest per-pupil expenditures (Table 9.9). Senegal initiated important reforms in i t s pol icy o f recruitment and remuneration o f the primary school teachers by introducing contractual teachers (volontaires and contractuals) paid 25 percent o f c iv i l servant salaries, and currently accounting for 47 percent o f the total personnel. Although this pol icy should have contributed to the reduction in the unit cost and to an increase in the share o f the budget spent on quality inputs, significant inefficiencies in the use o f personnel made it impossible to achieve improvements in access and quality.
During the f i rst phase, a large number o f administrative positions were created without the knowledge o f the central ministry. Approximately 47 percent o f the public resources allocated for the operation o f primary education were not directly used in schooling. The Public Expenditure Tracking Survey (PETS) conducted in 2003 concluded that, o f 100 c iv i l servant teachers (excluding the contractual teachers), 47 percent are teaching in classes, 18 percent are in the central or decentralized education structures, and 35 percent are not identified, are redeployed, have died, are in another ministry, or in training.
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Regarding the allocation o f public expenditures, f rom 2000 to 2005, personnel represented about 70 percent; expenditures for quality inputs (material expenditures) represented between 3 percent and 6 percent; and the remainder went to transfers (primarily subsidies at universities and other higher educational establishments (Table 9.10)). The share o f personnel costs increased to 71 percent in 2005 while quality inputs continued to be underfinanced.
Source: MinEdu, 2005
L o w internal efficiency at the University Cheik Anta Diop (UCAD) in Dakar threatens the viability o f the system. The study o f a cohort registered as first-year students in 2001/2002 and who were to complete four years in October 2005 showed the following: O f 1,000 students who started as first years: (i) in the Faculty o f Science, Economics, and Management, only 395 successfully completed the f i rst year, and only 356 continued without repetition until the fourth year; and (ii) in the Faculty o f A r t s , comprising 41 percent o f UCAD’s enrollments, only 57 students entered the fourth year in 2005, i.e. completed three years without repetition.
Equity in spending on education
Distribution of education public expenditures The graph below outlines the Lorentz curve regarding household and public expenditures by levels o f education from ESAM2 2001 data. I t is, in fact, obvious that the inequity linked with the distribution o f educational public expenditures i s slightly more significant than that in consumer expenditures.
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Graph 9.2: Lorentz Curve of consumption and public expenditures in education (all levels included)
The Lorentz curve on consumer expenditures shows that 50 percent o f households are responsible for 23 percent o f such expenditures; the Lorentz curve on public expenditures o n education shows that the 50 percent o f households receives less than 1 percent o f such expenditures. This means that the share o f public education expenditure received by the poorest households i s lower than what they have in their incomes.
International comparison of inequalities of access by economic group: The table below compares the degree o f inequality in the public allocation o f education resources in Senegal, as compared with the average French-speaking and English-speaking Afr ican countries with per capita GDP levels under US$l,OOO. The table also presents the Gini coefficient, which measures the degree o f inequality in the public allocation o f resources. The value o f this index varies between 0 (perfect equality) and 1 (situation in which only one individual holds al l the resources). In 2005, the value o f the Gini coefficient in Senegal was 0.59.
Table 9.11: Degree of Inequality in the Public Allocation of Resources to Education I 1 I
I Senegal I 50.8% I 0.59 I I French-meaking Afr ica a 1 46% I 0.56 I
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Evolution o f inequalities: The comparison between computations done through data from E S A M l (1995) and ESAM2 (2001) show that access o f children to each level o f education (measured by the gross enrollment rate) i s as weak as the households are poor. Table 9.12 below indicates that, in 2001, gross enrollments in primary education were at 52.3 percent for children from the poorest households (quintile l), and 93.6 percent for children from the wealthiest households (quintile 5). In addition, the inequalities worsen at higher level o f education. By 2001 , although there was a slight improvement in gross enrollments among children from poor households at primary, inequalities in fact worsened at the other levels.
2
3
4
5
Senegal
Source: Computations through data from ESAh4l and ESAM2 2001 Survey.
Girls from poor households have more l imited access to education. However, the gap between girls and boys is larger than when comparing the social origins o f poor children. W h i l e in households from quintile 5, the discrimination towards girls in accessing primary education i s almost non existent; i t i s o f great significance in al l other quintiles. Girls f rom poor households have l imited opportunities to continue their studies in lower and secondary education levels.
In addition, access to education i s correlated with geographic location, since children from rural areas have more limited access to education at all levels than those from urban areas (see Table 9.14).
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Other cities 71.9 81.3 23.4 40.9 21.2 Rural areas 43.1 51.1 2.7 11.1 7.9 National 56.4 63.4 13.6 23.6 13.9
Objectives and sustainability o f education development
21.3 3.3
12.6
To elaborate the medium-term expenditure framework (MTEF), a simulation model was used to determine the resources needed to attain the objectives in education. This section presents the main results and a sustainability assessment o f these objectives.
Objectives Elementary education: The goal i s to ensure a gross enrollment rate o f 100 percent in primary and a completion rate o f 100 percent by 2015. In order to achieve these objectives, o n average 2,700 additional classrooms have to be constructed per year, primarily in rural areas, and access to education has to be expanded for girls and for children with special needs as well as those from l o w incomes households. The use o f double shifting in highly populated areas and o f multigrading in l o w density areas wil l be necessary. Approximately 3000 teachers wil l need to be recruited each year. In order to achieve these objectives, administrative and pedagogical reforms wil l have to be systematically implemented, and grants would be provided to private schools. These strategies should result in the improvement o f the gross admission rate from 91 percent in 2005 to 100 percent in 2010 and the repetition rates will have to decrease to 5 percent.
Middle school education: Despite the significant increase in access to elementary education during the first phase, secondary education did not develop at the same pace, nor was it able to offer quality education. The Government has decided to put more emphasis o n the development o f this sub-sector by accommodate 53 percent o f primary school completers in middle schools in 2007, and 57 percent in 2009. During the second phase, the Government plans to: construct additional coll2ges (about 400 classrooms per year); with class sizes o f approximately 45 students, and with teachers teaching the norm o f 20 hours o n average week. The system would hire 1,100 vacataires o n average per year by 2007 and 1,300 per year between by 2010; train polyvalent teachers and improve the efficiency o f teacher use; provide grants to private schools receiving children from poor families in order to maintain the cost within the unit cost o f the public system and at the same time improving the quality o f services delivered.
General secondary education, and technical education and vocational training: The sub- sectors o f general secondary, and technical education and vocational training, are expected to receive 80 percent o f primary school graduates by 2010. More specifically, general secondary wil l receive 70 percent o f these 80 percent. There wil l be a construction o f high schools (130 classrooms per year) and the recruitment o f 300 polyvalent vacataires on average per year by 201 0 through the decentralization o f the hiring, pre-service and in-service training o f teachers;
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and making sure that there i s a strict norm o f 20 instructional hours on average per week for every teacher.
Government Financing (e= d+c) Recurrent (c= a+b) Investments (d) Financing o f PTF (0
Higher education: The Government aims to achieve the reform o f the higher education level. The alternatives o f this new higher education and scientific research pol icy are: (i) the deployment o f the new university map with the implementation o f the University Polytechnic o f Thiks (UPT), the opening o f three regional university colleges (CUR) and the creation o f the science and technological education and training faculty (FASTEF); (ii) an increase in enrollments at the University Gaston Berger (UGB) and the decongestion o f UCAD; (iii) the application o f the pol icy o f encouraging private higher education institutions.
Sustainability at mid-term Sectoral allocation: Economic prospects for the 2006-2009 period are positive: GDP growth rate i s expected to average 5.1 percent, with an inflation rate below 2 percent and a current account balance within the historical range, averaging 7.1 percent o f GDP. Implementation o f sectoral, structural, and budget reforms has been uneven, with significant progress in trade and in the groundnut sector.
Local collectivities contributions Private financing o f the investment Cost of Phase 2 (simulation and plan ) (h) Gap in Financing (I = h-g)
Regarding the allocation o f resources to education and training, the trends observed in the past years should continue with an average o f 5 percent o f GDP allocated to the education sector. This would ensure continuity as Government continues to substantially finance the education sector. T o ensure sufficient resources to sustain the development o f primary schools, the Government has decided to allocate 50 percent o f i t s recurrent budget to that level, o f which almost 15 percent i s to be used for quality improvement by 2009.
Table 9.15: Financing the education sector (PDEF en 000 FCFA) 2006 1 2007 I 2008 I Total
I I I I I Expected total and available financing (g=f+e) I 316,598 I 361,821 I 389,951 I 1,068,370 I
Households' contributions I 24,948 I 29,938 I 35,926 I 90,812 I
A three-year Medium Term Expenditures Framework (MTEF) to finance the total cost o f the second phase o f PDEF was prepared by the Government. The estimated costs are 1,041,684 mi l l ion FCFA. The Government plans to contribute about 759,206 mil l ion FCFA representing 73 percent o f the total budget. Therefore, i t i s assumed that Government will be able to meet i t s commitment to the education sector. At appraisal, there was a financing gap o f about 56.9 bi l l ion FCFA (US$113 million) representing 5 percent o f the total cost o f the second phase
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(2007-2009). The Government o f Senegal i s s t i l l seeking additional resources from other donors - it i s anticipated that the gap will be f i l led through the two other projects currently under preparation in the sector by AFD and ACDI. However, if that gap cannot be met, Government will have to revise i t s ambitious objectives for post-basic education.
Policy measures The major outcome indicator for the improvement o f primary education i s the increased completion rate from 53.9 percent in 2005 (the base year) to 85 percent in 2010. As we noted above, Senegal has developed a strong strategy to improve access to school by building sufficient classrooms at primary level and by hiring an adequate number o f teacher. However, a revealing indicator o f the inadequacy o f education inputs o f a l l kinds i s Senegal’s poor performance in both national (SNERS) and international (PASEC) assessments o f learning achievement.
Thus, the Government has decided to promote quality by emphasizing cost-efficiency measures, notably: (i) the improvement o f textbook availability to achieve a studentAextbook ratio o f 2 in the first two grades, and 5 in other primary classrooms and 6 in middle schools by 2010. (Analyses conducted under PASEC showed that the availability o f textbooks and the appropriate use o f those test results could improve student achievements by 2 to 3 percentage points); (ii) the implementation o f school libraries or reading comers in primary, middle and secondary classrooms; (iii) the improvement o f leadership and management through systematic teacher training and in-service training o f school directors and other school personnel; (iv)transferring more financial resources to schools, 1.4s and IDENS; (v) the reduction o f the repetition rate from 13 percent in 2005 to 6 percent in 2006; (vi) the reduction o f the number o f non-teaching staff from about 6000 to 3500; (vii) the allocation o f 50 percent o f education recurrent budget to primary education by 2010 with 15 percent o f this amount to be used for quality inputs; viii) to raise the awareness o f this problem among teachers and al l other persons involved in decisions about repetition. A legally binding upper limit needs to be established for repetition rates and enforced in al l schools; and (ix) and improved school-level pedagogic support. IDA will assist the Government in addressing this issue
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Annex 10: Safeguard Policy Issues SENEGAL: Quality Education for All Project - Phase 2
OP 4.01 Environmental Assessment
OP 4.01 was triggered due to the construction and rehabilitation o f schools to be funded under the project. To address the potential negative environmental and social impacts, the project: (a) prepared an Environmental and Social Management Framework (ESMF) because the precise locations o f the schools and the potential localized impacts could not be identified prior to appraisal.
ESMF: The ESMF will be applied by qualified personnel f rom the Environment Impact Assessment Unit o f Senegal’s Ministry o f Environment. The responsible officer(s) will be consulted by the DPRE at the time when plans for the construction o f schools are made to ensure that potential environmental and social impacts are identified, assessed and appropriately mitigated. Thus, the ESMF (i) describes the environmental and social screening process; (ii) includes an environmental checklist to be appliedamended by qualified personnel as appropriate; (iii) provides generic draft terms o f reference for an environmental analysis, should one be required; and (iv) it summarizes ,IDA’S operational policies to ensure that these are taken into account during project implementation as required. Furthermore, the ESMF includes provisions, including costs estimates, for environmental management capacity building to ensure effective implementation o f the ESMF; these costs wil l be incorporated into the project cost tables. To ensure adequate monitoring o f the implementation o f the ESMF and the RPF, the Recipient institution responsible for environmental management, i.e. the Ministry o f Environment will be charged with the responsibility o f supervising implementation and sharing their findings with IDA and other interested parties.
OP 4.12 Involuntary Resettlement
OP 4.12 was triggered due to the potential need for land acquisition which might lead to the loss o f assets, loss o f shelter, loss o f access to economic assets or loss o f livelihood, requiring that affected persons be compensated and/or resettled. To address potential negative social impacts due to land acquisition, the project prepared a Resettlement Policy Framework (RPF) and Environmental and Social Management Framework (ESMF) which were disclosed in appropriate locations in the country as wel l as at the Bank’s Infoshop. Both documents have been disclosed prior to project appraisal. The recommendations and processes from the documents will be clearly articulated in the Project Implementation Manual for purposes o f smooth implementation o f the recommended actions.
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Annex 11: Project Preparation and Supervision SENEGAL: Quality Education for All Project - Phase 2
Planned Actual PCN review July 21,2005 Initial PID to PIC May 1,2006 Initial ISDS to PIC June 21,2006 Appraisal April 16,2006 July 5,2006 Negotiations April 16,2006 July 10,2006 Board/RVP approval May 25,2006 August 29,2006 Planned date o f effectiveness November 2006 Planned date o f mid-term review June, 2008 February 29,2008 Planned closing date October 3 1 , 2009 October 31,2010
October 3 1 , 2006
Key institutions responsible for preparation o f the project: 0 The Ministry o f Education 0 The Ministry o f Technical Education and Vocational Training
Bank staff and consultants who worked on the project included:
I Name I Title I Unit I Meskerem (Lily) Mulatu Task Team Leader/Sr. Education Specialist AFTH2 Amy Ba Program Assistant AFTH2 Marie-Christine Balaguer Paralegal LEGAF Sidi Boubacar Lead Counsel LEGAF Renee Dksclaux Finance Officer LOAG2 Bourama Diaite Senior Procurement Specialist AFTPC Nathalie Lahire Education Specialist AFTH2 Gerald0 Martins Senior Education Specialist AFTH2 Atou Seck Education Economist AFTH2 Fily Sissoko Senior Financial Management Specialist AFTFM
Bank hnds expended to date on project preparation: 1. Bank resources: US$150,000 2. PPF: US$600,000 3. Total: US$750,000
Estimated annual supervision cost: US$lOO,OOO
114
Annex 12: Documents in the Project File SENEGAL: Quality Education for All Project - Phase 2
1. Project Documents Aide-Memoire Project Status Report and Implementation Status Report, Seq #1-16 (2000-2005) Project Appraisal Document (PAD), report N o 19610-SE, March 20,2000; Development Credit Agreement (DCA), April 28,2000
2. Bank Documents Country Assistance Strategy (1 998-2000), December 1997; Country Assistance Strategy, March 2003; Implementation Completion Report o f Quality Education for All, phase 1, May 2006 The World Bank (2004), Assessing Student Learning in Africa. (Thomas Kellaghan and Vincent
Greaney).
3. Government documents Country Status report (CREA-UCAD, 2004) Revised Education Policy, January 2005 Evaluation o f school construction, 2005 Evaluation o f QEFA 1, DPRE 2005 Medium Term Expenditures Framework (MTEF), MOE, 2005 Technical and Financial Annual Report, Various versions, CREA 2000-2005 Annual statistical yearbook, various versions, 2000-2005 Ministbre de 1’Education : Etude sur l’expkrimentation de l’enseignement bilingue au Sknkgal INEADE - Synthbse des Rksultats du SNERS (1998) et Premikres Projections en Vue
INEADE : Evaluation des rendements des klkves au CP et au CE2 : Restitution du Rksumk
INEADE : Synthkse des rksultats du SNERSI PDRH2 et premikre projections en vue
d’hdicateurs de Rendements Centrks sur la Qualitk.
Analytique du Rapport d’Evaluation des rksultats du SNERS 2002
d’indicateurs de rendements centrks sur la qualitk (1 998).
4. Other references ADEA (Association pour l e Dkveloppement de 1’Education en Afrique) : Elements
d’apprkciation de la qualitk de l’enseignement primaire en Afiique francophone:
Jean-Marc Bernard (2003). Programme d’analyse des systbmes kducatifs de la Confkrence des
CONFEMEN (2004). L e redoublement au Senegal: Facteur de qualitk ou entrave ti la
PASEC - Etude longitudinale sur l e redoublement: Pratiques et Conskquences dans
PASEC - Etude sur les profils enseignants et qualitk de l’kducation en Afiique Subsaharienne
Ministres de 1’Education des pays ayant l e fianqais en partage (CONFEMEN).
scolarisation primaire universelle ?
1’Enseignement Primaire au Sknkgal (ME/mars 2004).
fiancophone: Bilan et perspectives de dix annkes de recherche du PASEC (1994-2004).
115
INEADEISEDEP - SNERS (Systbme National d’Evaluation du rendement Scolaire) : (i) L’Evaluation du Rendement Ptdagogique du Franqais Ecrit dans 1’Enseignement Primaire: Les Rtsultats au CE1 et au CE2. Rapport Final. 0. K. Diallo. G. Henry. M. Kane. C. Strauven (1 979); (ii) L’Evaluation du Rendement Ptdagogique du Franqais Ecrit dans 1’Enseignement Primaire: Les Rtsultats au CM2. Rapport Final. 0. K. Diallo. G. Henry. M. Kane. C. Strauven (1979).
no. 2 Hanushek, E. (2005). Finance and Education: Why quality matters in education? IMF, vol. 42,
CONFEMEN, PASEC- Programme d’analyse des systbmes tducatifs de la CONFEMEN U S Department o f Education - What Works Clearinghouse - Florida Center for Reading
U S Department o f Education - National Reading Panel report (2000). Teaching children to read: Research.
An evidence -based assessment o f scientific research literature on reading and i ts implications for reading instruction.
The Southern Africa Consortium for Monitoring Educational Quality (SACMEQ): Testing the reading ski l ls o f grade 6 students in four countries: Namibia, Mauritius, Zanzibar/Tanzania, and Zimbabwe.
116
L n r : r m
a 0 c o ( D N oco O ( D b (Db b m b mcD UJNm coco m o m 0 0 0 0 0 nn nnn
(4 4
Statement of IFC's Held and Disbursed Portfolio (As at 04/30/06) (In US$ million)
Total Portfolio 44.18 4.57 3.04 9.3 20.21 4.4 3.04 9.3
Commitment
AEF SERT = Afr ica Enterprise Fund - Sociktd d 'exploitation des ressources thonn2res
BHS = Banque Habitat du Sknkgul (local housing bank) CDS = Ciments du Sahel (cement factory) GTI-DAKAR = (power plant) Kounoune (independent power producer) SEF Royal Saly = Small Enterprise
(tuna fishing unit)
118
Annex 14: Country at a Glance SENEGAL: Quality Education for All Project - Phase 2
Agriculture 18.7 20.2 18.4 19.1 Industry 17.7 19.8 21.1 18.6
Most recent estimate (latest year available, 1999-05)
Poverty (% of populabon below nabonal poverty line) Urban population (% of total populabon) Life expectancy at birth (yearn) Infant mortality (per 1,000 live births) Child malnutntion (% of children under 5) Access to an improved water source (% ofpopulahon) Literacy (% of population age 75+) Gross primary enrollment (% of school-age populabon)
Male Female
KEY ECONOMIC RATIOS and LONG-TERM TRENDS
1985
GDP (US$ billions) 2 6 Gross capital fonnation/GDP 10 5 Exports Of goods and ServicesIGDP 28 6 Gross domestic savings/GDP -2 9 Gross national savings/GDP -8 1
Current account balance/GDP Interest payments/GDP Total debffGDP Total debt service/exports Present value of debt/GDP Present value of debffexports
-17.3 3.5
99.5 20.7
1985-95 199545
GDP 3.0 4.5 GDP per capita 0.4 1.9 Exports of goods and services 3.0 5.9
(average annual growth)
10.7 780 8.2
2.4 2.4
57 51 52 78 23 72 39 80 83 77
1995
4.5 16.7 34.5 11.1 11.5
-5.2 1.9
87.0 16.8
2004
5.6 3.4 3.8
Sub- Saharan
Afrlca
726 6W 437
2 3 2 4
37 47
101
58 60 93 98 87
2004
7 6 23 4 27 8 9 8
16 7
-6 7
2005
5 5 3 0 2 6
LOW- Income
2,343 51 0
1.188
I 9 2 2
31 58 79 43 75 61
100 105 94
2005
8 3 23 3 27 0 9 1
15 4
-7 8
2005-09
5 3 3 5 3 4
Development diamond'
Life expectancy 7-
GNI Gross
capita enrollment per primary
I
Access to improved water source
Senegal Low-Income omun
-
Economlc ratios'
Trade
T
Domestic Capital savings formation
Indebtedness
- Senegal - Low-Income omuD
STRUCTURE of the ECONOMY
I% of GDPj lgg5 2004 2005 /Growth of capltal and GDP (Oh)
Household final consumption expenditure 0.8 2.7 0.7 General gov't final consumption expenditure 0.2 7.8 11.2 Gross capital formation Imports of goods and services
Note: 2005 data are preliminary estimates.
"The diamonds show four key indicators in the country (in bold) compared with its income-group average. If data are missing, the diamond will
120
Annex 14: Country at a Glance SENEGAL: Quality Education for All Project - Phase 2
Most recent estimate [latest year available, 1999.05)
Poverty I% ofpopulation below nationalpoverty line) Urban population (% of total population) Life expectancy at birth (years) Infant mortality (per 7,000 live births) Child malnutrition (% of children under 5) Access to an improved water source (% ofpopulabon) Literacy (% ofpopulabon age 15+) Gross primary enrollment (% of school-age populabon)
Male Female
KEY ECONOMIC RATIOS and LONG-TERM TRENDS 1985
GDP (US$ billions) Gross capital formationIGDP Exports of goods and ServicesIGDP Gross domestic savings1GDP Gross national savings1GDP
2.6 10.5 28.6 -2.9 -8.1
Current account baiance/GDP -17.3 Interest paymentsIGDP 3 5 Total debtlGDP 99.5 Total debt servicelexports 20.7 Present value of debtlGDP Present value of debtlexports
(average annual growth) 1985-95 199505
GDP 3.0 4.5 GDP per capita 0.4 1.9 Exports of goods and services 3.0 5.9
10 7 760 8 2
2 4 2 4
57 51 52 78 23 12 39 80 63 77
1995
4 5 16 7 34 5 11 1 11 5
-5 2 1 9
87 0 16 8
2004
5 6 3 4 3 6
Sub- Saharan
AfrlCa
726 600 437
2 3 2 4
37 47
101
58 60 93 98 87
2004
7 6 23 4 27 8 9 8
16 7
-6 7
2005
5 5 3 0 2 6
Low- income
2,343 51 0
1.188
1 9 2 2
31 58 79 43 75 61
100 105 94
2005
8 3 23 3 27 0 9 1
154
-7 8
200549
5 3 3 5 3 4
Development diamond'
Life expectancy
GNI Gross
capita enrollment per m a r y
I
Access to improved water source
-Senegal - Low-income group
Economic ratios.
Trade
L T
Domestic Capital savings formation
Indebtedness
Senegal - I -- LOWiflCOiW QfUW
STRUCTURE of the ECONOMY
(% of GDP) Agriculture industry
Services
Household final consumption expenditure General gov't final consumption expenditure Imports of goods and services
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