Document of The World Bank Report No: ICR2570 IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA-42310, TF-56897) ON A CREDIT IN THE AMOUNT OF SDR 20.5 MILLION (US$30 MILLION EQUIVALENT) AND A JAPAN POLICY AND HUMAN RESOURCE DEVELOPMENT GRANT IN THE AMOUNT OF US$4 MILLION 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 December 20, 2012 Human Development West and Central Africa Education Unit Africa Region 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 of The World Bank
Report No: ICR2570
IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA-42310, TF-56897)
ON A
CREDIT
IN THE AMOUNT OF SDR 20.5 MILLION (US$30 MILLION EQUIVALENT)
AND A JAPAN POLICY AND HUMAN RESOURCE DEVELOPMENT
GRANT
IN THE AMOUNT OF US$4 MILLION
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
December 20, 2012
Human Development West and Central Africa Education Unit Africa Region
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2
CURRENCY EQUIVALENTS
(Exchange Rate Effective December 3, 2012)
Currency Unit = CFA Franc (FCFA) US$1.476 = 1 SDR
US$ 1.00 = 503 FCFA
FISCAL YEAR: January 1 – December 31
ABBREVIATIONS AND ACRONYMS AFD French Development Agency (Agence Française de Développement) APL Adaptable Program Loan BFEM Middle School Exit Examinations (Brevet de Fin d’études moyennes) CA Credit Agreement CAS Country Assistance Strategy CDSMT Medium-term Expenditure Framework (Cadre des Dépenses Sectorielles à Moyen
Terme) CEM Middle Schools (Collèges de l’Enseignement Moyen) CGE School Management Committee (Comite de Gestion d’Ecole) CIME Ministry of Education Data Unit (Cellule Informatique du Ministère de
l’éducation) CM1 Cours d’enseignement moyen 1 (Equivalent to Grade 4) CM2 Cours d’enseignement moyen 2 (Equivalent to Grade 5) CNRE National Education Resource Center (Centre National de Ressources
Educationnelles) CRES Consortium for the Social and Economic Research CSOs Civil Society Organizations (Organisation de la Société Civile) DAGE Administration and Management Department (Direction de L’Administration
Générale et de l’Equipement) DCES School Construction Department (Direction de la Construction et de l’équipement
scolaire) DDI Debt and Investment Department DEE Elementary Education Department DEMSG Middle and General Secondary Education Department (Direction de
l’Enseignement Moyen et Secondaire General) DPRE Planning and Education Reform Department (Direction de la Planification et de
la Réforme de l’Education) DRH Department of Human Resources (Direction des Ressources Humaines) EFA Education for All EFI Elementary School Teacher Training Institution (Ecole de la Formation des
Instituteurs) ESMF Environmental and Social Management Framework FTI Fast Track Initiative
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GDP Gross Domestic Product GER Gross enrollment rate IA Education structure at regional level (Inspection d’Académie) IDA International Development Association IDEN Education structure at the district level (Inspection départementale de l’éducation nationale) INEADE National Research Institute for Education
(Institut National d’Etudes et d’Action pour le Développement de l’Education) IT Information Technology M&E Monitoring and Evaluation MDG Millennium Development Goal MEN Ministry of Education (Ministère de l’éducation nationale) MOF Ministry of Finance MTR Mid-Term Review PAD Project Appraisal Document (Document d’Evaluation du Projet) PAF Regional Training Plans (Plans Académiques de Formation) PCR Primary Completion Rate PAQ Quality Action Plans (Plans d’ actions de Qualité) PDEF Ten-year Sector Program (Programme Décennal de l’Education et la Formation) PHRD Policy for Human Resources Development QEFA1 Quality Education for All Project Phase I QER Quality Enhancement Review RDA Regional Local Development Agencies (Agences Régionales de Développement
Local) SNERS National Assessment (Système National De ‘Evaluation des Rendements
Scolaires) USAID United States Agency for International Development
Sector Manager: Peter N. Materu Project Team Leader: Atou Seck
ICR Team Leader: Atou Seck
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SENEGAL Quality Education for All 2 Project
CONTENTS
Data Sheet A. Basic Information B. Key Dates C. Ratings Summary D. Sector and Theme Codes E. Bank Staff F. Results Framework Analysis G. Ratings of Project Performance in ISRs H. Restructuring I. Disbursement Graph
1. Project Context, Development Objectives and Design ............................................. 15 2. Key Factors Affecting Implementation and Outcomes ............................................ 18 3. Assessment of Outcomes .......................................................................................... 24 4. Assessment of Risk to Development Outcome ......................................................... 35 5. Assessment of Bank and Borrower Performance ..................................................... 35 6. Lessons Learned ....................................................................................................... 37 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners .......... 38 Annex 1. Project Costs and Financing .......................................................................... 39 Annex 2. Outputs by Component ................................................................................. 40 Annex 3. Economic and Financial Analysis ................................................................. 47 Annex 4. Bank Lending and Implementation Support/Supervision Processes ............ 48 Annex 5. Beneficiary Survey Results ........................................................................... 50 Annex 6. Stakeholder Workshop Report and Results ................................................... 51 Annex 7. Summary of Borrower's ICR and/or Comments on Draft ICR ..................... 52 Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders ....................... 56 Annex 9. List of Supporting Documents ...................................................................... 57
Lending Instrument: APL Borrower: GOVERNMENT OF THE REPUBLIC OF SENEGAL
Original Total Commitment:
XDR 20.50M Disbursed Amount: XDR 20.50M
Revised Amount: XDR 20.50M Environmental Category: B Implementing Agencies: Ministry of Education Cofinanciers and Other External Partners: Japanese PHRD, USAID B. Key Dates
Process Date Process Original Date Revised / Actual Date(s)
Original Actual Sector Code (as % of total Bank financing) Central government administration 32 32 General education sector 16 16 Primary education 23 23 Secondary education 23 23 Sub-national government administration 6 6
Theme Code (as % of total Bank financing) Decentralization 14 14 Education for all 29 29 Education for the knowledge economy 29 29 Gender 14 14 Public expenditure, financial management and procurement 14 14 E. Bank Staff
Positions At ICR At Approval Vice President: Makhtar Diop Gobind Nankani Country Director: Ritva Reinikka Madani M. Tall Sector Manager: Peter Materu Setareh Razmara Project Team Leader: Atou Seck Meskerem Mulatu ICR Team Leader: Atou Seck ICR Primary Author: M. Rosa Puech
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F. Results Framework Analysis Project Development Objectives (from Project Appraisal Document) The Project was Phase 2 of an APL. In line with APL original document, the project objective as reflected in the Credit Agreement (CA) was to enhance the quality of the Recipient’s education system through the improvement of teaching and learning practices.. . The project would do this by: (a) improving both access and retention by expanding the number of 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 by providing school grants, learning materials, training and improving testing and evaluations; and (c) strengthening management at central, deconcentrated and decentralized levels to ensure attainment of PDEF objectives. Revised Project Development Objectives (as approved by original approving authority) The PDOs were not revised during the life of the Project. The key performance indicators were modified to better measure the achievement of PDO. Some indicators were eliminated because they lacked baselines and were not being monitored. (a) PDO Indicator(s)
Indicator Baseline Value
Original Target Values (from
approval documents)
Formally Revised Target
Values
Actual Value Achieved at
Completion or Target Years
Indicator 1 Gross enrollment rates in primary Value (qualitative or quantitative)
79.90% 96.0% 96% 94.1%
Date achieved 12/31/2004 12/31/2009 12/31/2011 06/30/2012 Comments (incl. % achievement)
Partially achieved. The target was not fully achieved due to efficiency improvements in the education system, particularly the sharp decrease of repetition rates (see indicator below).
Indicator 2 Percentage of 7 year-olds enrolled in Grade 1 - Gross intake rate Value (qualitative or quantitative)
92.10% 103.3% 113.1%
Date achieved 2004 2009 06/30/2012 Comments (incl. % achievement)
Target achieved and exceeded.
Indicator 3 Gender parity index Value (quantitative or Qualitative)
0.95 n.a. 1.08 1.15
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Date achieved 01/12/2005 12/31/2009 12/31/2011 06/30/2012 Comments (incl. % achievement)
Target was achieved and exceeded. The indicator was modified at restructuring in 2010. It originally read as “Girls as a percentage of all in primary”.
Indicator 4 Girls as a percentage of all junior secondary schools (JSS) Value (quantitative or Qualitative)
JSS 39.7% (2005) JSS 46% JSS 46% JSS 49.30%
Date achieved 2004 2009 12/31/2011 06/30/2012 Comments (incl. % achievement)
Target was achieved and exceeded.
Indicator 5 Primary completion rate Value (quantitative or Qualitative)
48.70% 78% 65% 66.90%
Date achieved 2004 2009 12/31/2011 06/30/2012 Comments (incl. % achievement)
Target was achieved and exceeded.
Indicator 6 Drop in repetition rate in primary Value (quantitative or Qualitative)
13%
6.30% 6.8% 3.20%
Date achieved 2004 2009 12/31/2011 06/30/2012 Comments (incl. % achievement)
Target was achieved and exceeded.
Indicator 7 Drop in dropout rate in primary Value (quantitative or Qualitative)
13.90% n.a. 5% 8.90%
Date achieved 2004 2009 12/31/2011 06/30/2012 Comments (incl. % achievement)
This target was partially achieved. This indicator was included at restructuring. The dropout rate was reduced.
Indicator 8 Percentage of children in elementary receiving the minimum acceptable scores in reading, languages, mathematics and sciences
Value (quantitative or Qualitative)
Fr.: 50.9% Math: 56.2%
75%
n.a. n.a.
Date achieved 2004 2009 12/31/2011 06/30/2012
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Comments (incl. % achievement)
This indicator was dropped at restructuring.
INEADE carried out an assessment of learning outcomes for CP, CE2 and CM2 in 2011 based on the new curriculum and pedagogical and evaluation approach. The results could not be compared to previous evaluations.
Indicator 9 Transition rate from primary to middle school Value (quantitative or Qualitative)
46.30% 57% 67.60% 88.00%
Date achieved 2004 2009 12/31/2011 06/30/2012 Comments (incl. % achievement)
This target was achieved and exceeded.
Indicator 10 System for the learning assessment at the primary level Value (quantitative or Qualitative)
yes n.a. yes yes
Date achieved 2004 2009 06/30/2012
Comments (incl. % achievement)
This target was achieved. This indicator was introduced in the restructuring in 2010 as an IDA core indicator. It replaced the one in the PAD “Success rate from primary to middle school”, due to lack of precision.
Indicator 11 Education recurrent budget as share of government recurrent budget, excluding debt service
Value (quantitative or Qualitative)
31.30 n.a 33% 34%
Date achieved 2004 2009 12/31/2011 06/30/2012
Comments (incl. % achievement)
This target was achieved. This indicator captured/unified the 4 budget related indicators in the PAD: Education recurrent budget allocated to primary school cycle, for higher education, share of recurrent budget net of salaries, benefits, scholarships and transfers and education recurrent budget as a share of government recurrent budget. The baseline and target values were different since the definition of this indicator was different.
Indicator 12 Direct Project beneficiaries
Value (quantitative or Qualitative)
1,429,000 elementary students, of
which 723,000 girls
28,000 junior secondary
students, of which 14,000 are
1,725,840 of which 881,678
girls 617,911junior
secondary students of which 299,999 are girls.
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girls. Date achieved n.a n.a. 06/30/2012 Comments (incl. % achievement)
This target was achieved and exceeded. The PAD did not include a list of project beneficiaries and this was included at restructuring.
Indicator 13 Instructional time per year in elementary school Value (quantitative or Qualitative
700 hours (2005) 900 hours 806 hours
Date achieved 2004 2009 2011 06/30/2012
Comments (incl. % achievement)
This target was partially achieved. Indicators eliminated were the number of hours taught by middle school teachers and the number of hours spent by students on monitored reading per week.
Indicator 14 Education recurrent budget allocated to higher education Value (quantitative or Qualitative
Date achieved 2004 2009 06/30/2012 Comments (incl. % achievement)
Dropped at restructuring.
Indicator 15 Number of hours taught by middle school teachers Value (quantitative or Qualitative
Date achieved 2004 2009 06/30/2012 Comments (incl. % achievement)
Dropped at restructuring. The indicator had no baseline or target and was not monitored.
Indicator 16 Success rate on middle schools examination.
Value (quantitative or Qualitative
55.4% 60% n.a. n.a.
Date achieved 2004 2009 06/30/2012 Comments (incl. % achievement)
Indicator dropped in the restructuring in 2010.
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(b) Intermediate Outcome Indicator(s)
Indicator Baseline Value
Original Target Values (from
approval documents)
Formally Revised Target
Values
Actual Value Achieved at
Completion or Target Years
Indicator 1 2,800 middle school places will be created (about 100 places per school in 28 schools) and all will be filled by the beginning of the school year after completion of construction
Value (quantitative or Qualitative)
0 2,800 14,947 middle
school places are created
Date achieved 2004 2009 n.a. 06/30/2012 Comments (incl. % achievement)
This target was achieved and exceeded.
Indicator 2 Number of learners – specifying percentage of women among them – enrolled in literacy classes
Value (qualitative or quantitative)
0 50,000 40,000 women 53,250
Date achieved 2004 2009 2012 Comments (incl. % achievement)
Achieved. The indicator in the PAD read: “50,000 learners, 70 percent women, will be enrolled and 80 percent of them will complete 300 hours by October 2009”.
Indicator 3 100 percent of block grants will finance quality inputs at schools as indicated in the procedures manual.
Value (quantitative or Qualitative)
0 100% 100%
Date achieved 2004 2009 2012 Comments (incl. % achievement)
Achieved.
Indicator 4 At least 95 percent of textbooks purchased by the Project will be used in classrooms, as verified by classroom observations
Value (quantitative or Qualitative)
0 95% 100%
Date achieved 2004 2009 06/30/2012 Comments (incl. % Achieved and surpassed.
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achievement)
Indicator 5 Performance management frameworks (cadres de performance) will be developed and implemented in all directorates
Value (quantitative or Qualitative)
0 All directorates and IAs and IDENs by
October 2008 yes yes
Date achieved 2004 2009 06/30/2012 Comments (incl. % achievement)
Indicator 6
Successful conclusion of annual statistical campaigns by April of the following year.
Value (quantitative or Qualitative)
No reliable publication of
statistical data for education
Annual statistical campaigns
regularly and successfully published
Annual statistical campaigns
regularly and successfully published
Date achieved 2004 2009 06/30/2012 Comments (incl. % achievement)
Indicator 7
50 percent of teachers observed in 2008 and 75 percent of teachers observed in 2009 will use textbooks effectively
Value (quantitative or Qualitative)
0 75% percent of teachers observed n.a. n.a.
Date achieved 2004 2009 Comments (incl. % achievement)
Eliminated at restructuring.
Indicator 8 Number of schools where reading accuracy and comprehension were measured
Value (quantitative or Qualitative)
0 1000 n.a. n.a.
Date achieved 2004 2009 Comments (incl. % achievement)
Eliminated at restructuring. The indicator was not monitored.
The Project was restructured to better achieve the PDO. Key changes were: (i) a revise the results framework; (ii) reallocation of funds among disbursement categories; (iii) refocus some activities; (iv) extend of the closing date; (v) introduce a new activity to support learners with difficulties.
11/15/2011 S S 29.30 The project was restructured to extend the closing date.
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I. Disbursement Profile
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1. Project Context, Development Objectives and Design
1.1 Context at Appraisal 1. The Quality Education for All 2 Project was the second phase of an adaptable program loan (APL) approved to support the implementation of the Government’s Ten-Year Education and Training Program (Programme Décennal de l’Education et la Formation – PDEF). The prior project (Phase I) was the Quality Education for All Project (P047319) which was completed in December 2005. Most of the first project’s objectives were met as were the required triggers for transitioning from the first project (Phase I) to the Quality Education for All 2 Project (Phase II). The most important gains made during the first project included: an increase in access to education with significant improvements in girls’ access to education; and building capacity at the regional and district levels in terms of piloting the support of block grants to regions, districts and schools. Other achievements included the development of monitoring and evaluation (M&E) mechanisms and a Medium-Term Expenditure Framework (MTEF) which was developed by the Government’s education team with support of the Ministry of Finance (MOF). 2. Challenges, however, remained related to: (i) improving the quality of education, the effective use of data collected, and policy analysis to influence policy making; (ii) further decentralizing the Government budget to local governments; and (iii) rationalizing budget resources and reallocations among the different education levels in order to achieve the goals of the PDEF.
1.2 Original Project Development Objectives (PDO) and Key Indicators (as approved) 3. The project objective as reflected in the Credit Agreement (CA) was to enhance the quality of the Recipient’s education system through the improvement of teaching and learning practices. The project appraisal document (PAD) indicated the Project would support the achievement of the project development objective (PDO) by: (a) improving both access and retention by expanding the number of 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 of PDEF objectives. The PDO was to be measured by the following indicators: Access
• Gross primary enrollment rate for girls and boys would reach 96 percent by 2009; • First grade entry would reach 103 percent by 2009; • Girls as percentage of all students would reach 49 percent by 2009 in elementary schools
and 46 percent in middle schools by 2009; and • Primary completion rate (PCR) would reach 78 percent by 2009.
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Quality • Repetition rates in primary would decline to 6 percent by 2009; • At least 75 percent of primary students would receive at least the minimum acceptable
score in reading, languages, mathematics and science by 2009; • Transition rate from primary to middle schools would reach 57 percent in 2009; and • Success rate on middle school exit examinations (Brevet de Fin d’études moyennes –
BFEM) would reach 60 percent by 2009. Management
• Education recurrent spending would be 40 percent of all Government recurrent spending every year until 2009 (calculated as recurrent budget net of debt services and of common expenditures or dépenses communes);
• Education recurrent budget allocated to primary education would reach 50 percent in 2009;
• Education recurrent budget allocated to higher education would reach 20 percent in 2009; • Middle school teachers would teach on average 20 hours per week by 2009; and • Instructional per year time in education would reach 900 hours by 2009.
4. The PAD and the CA included a set of progress indicators, included in the Results Framework of the data sheet, to track implementation progress (see section F of the Data Sheet).
1.3 Revised PDO (as approved by original approving authority) and Key Indicators, and reasons/justification 5. The PDOs were not modified during the life of the Project. The results framework was modified in the August 2010 restructuring as follows:
(i) The target for the PCR was revised from 78 percent to 65 percent; (ii) The indicator related to the share of Government budget allocated to education was revised in order to align it with the internationally agreed Education for All (EFA) benchmarking; and (iii) Several outcome indicators were dropped – specifically those that had no baseline or target and those which were not monitored, or were not as relevant in measuring Project outcomes.
The Results Framework in section F of the Data Sheet contains the revised outcome and intermediate indicators.
1.4 Main Beneficiaries 6. The Project beneficiaries were: school-aged children in primary and secondary levels, young illiterate adolescents and women between 15 and 49 years of age, teachers and school directors. The Project would focus on underserved rural students and on students with disabilities. The Project was supposed to benefit staff and managers of the Ministry of Education (Ministère de l’éducation nationale – MEN) at central, regional and local levels to schools and local governments.
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1.5 Original Components (as approved) The Project had three components: 7. Component I: Expanding access and improving retention in elementary and middle schools. This component would finance the following: (i) the construction of middle schools in underserved areas; (ii) the construction of latrines and water points in elementary schools lacking these facilities; and (iii) the provision of literacy courses to 50,000 people (with 70 percent of these being women). 8. Component II: Improving education quality in the elementary classroom. This component would finance the following activities: (i) provision of block grants for quality improvement plans at regional, district and school levels; (ii) provision of pedagogic inputs to schools, such as textbooks and other instructional, library and reading materials; (iii) training of teachers, inspectors, school directors and mentor teachers, with specific attention to the development of training modules, and training of trainers to improve quality in the classroom; (iv) improving the system of examinations and evaluation of learning outcomes; and (v) supporting sector studies in key sub-sectors, including vocational training and higher education. 9. Component III. Strengthening management, monitoring and communication throughout the system. This component would: (i) provide support for results-based management with the MEN at central and decentralized levels; (ii) strengthen M&E, building a strong data collection mechanism and capacity for using results for policy development; and (iii) improve communication across all actors in the system, and poll communities on their views of education using the community score card method.
1.6 Revised Components 10. The main components of the Project remained unchanged.
1.7 Other significant changes 11. The project was first restructured in August 2010. The CA was modified to reallocate funds among disbursement categories and Project components. The restructuring sought to: (i) refocus activities that aimed to tackle the main internal inefficiencies and quality issues; (ii) revise the Results Framework as explained in section 1.3; to (iii) involve Regional Local Development Agencies (RDAs or Agences Régionales de Développement Local) to speed up the implementation of subcomponent 1.a, the construction of 170 water points and 300 six toilet blocks in existing elementary schools; (iv) introduce an activity in subcomponent 2.c “block grants to schools and local education structures”, which would provide additional support to students experiencing learning difficulties in math and reading during the summer vacation with the involvement of civil society organizations (CSOs). Reallocations among project components were minimal (see table below). Additionally, the restructuring was undertaken in order to (v) extend the closing date by 14 months from October 30, 2010 to December 31, 2011.
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Project cost by component Category of Expenditure Allocations (SDRs) % Financing
1. Improving access and retention 6,470,000 6,470,000 100 Not revised 2. Improving Education quality 4,770,000 4,300,000 100 Not revised 3. Strengthening of management of the
education system 340,000 2,000 100 Not revised
4. Grants to support decentralized levels 5,100,000 6,364,000 100 Not revised 5. Operating costs 680,000 2,686,000 100 Not revised 6. Reimbursement of the Advance PPF 780,000 430,000 100 Not revised 7. Unallocated 2,360,000 134,900 100 Not revised 12. A second restructuring took place on December 27, 2011 so that: (i) the project closing date could be extended for a second time from December 31, 2011 until June 30, 2012 ; and (ii) a minor reallocation of funds among disbursement categories could be made. At that point, there were only a few activities left to be completed (construction of 7 junior secondary schools (for which the project target was 28), construction of 170 water points and 300 latrines in primary schools, and a learning assessment for Grades 2, 4 and 6 in May 2012.
2. Key Factors Affecting Implementation and Outcomes
2.1 Project Preparation, Design and Quality at Entry 13. Government ownership was strong. The PDEF, approved in 2000, was being successfully implemented, with support from the International Development Association (IDA) and other donors. Public expenditure as a percentage of gross domestic product (GDP) increased annually between 2000 and 2005, during the first Quality Education for All project (Phase I -- supporting the PDEF). The Government had committed significantly more resources than planned to each of the activities during Phase I. The country had made progress in implementing a framework for quality education and in increasing access to education, recruiting teachers and transferring responsibilities to the decentralized departments. 14. Project preparation was based on solid knowledge background. The first Quality Education for All Project had financed a substantial number of studies (such as the evaluation of school construction and the QEFA1 evaluation, a study on bilingual teaching practices, evaluations of learning assessments, annual statistical digests) and had contributed to strengthening M&E capacities. The Government and the IDA team had been working closely together during the implementation of Phase I and the good dialogue between the Government and the IDA team contributed to a solid and fluid preparation. The experience of QEFA1 and the strengthened capacity at the MEN resulted in a strong participation of key department of the MEN (including the Planning and Education Reform Department (Direction de la Planification et de la Réforme de l’ Education, DPRE) the Administration and Management Department (Direction de l’ Administration Générale et de l’équipement, DAGE) and the Elementary Education Department (Direction de l’Enseignement Elementaire DEE) during the preparation of the Project. The IDA team worked closely with the Government and other donors in harmonizing the support to the sector efforts, led by the Government.
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15. The PDOs and design were in line with the goals set in the PDEF and in the Country Assistance Strategy (CAS) (FY07-10), which aimed at building human capacity at the national level while improving access to and the quality of the social services. The PDOs and components supported the millennium development goals (MDGs) related to education and gender parity. The choice of project components and activities were appropriate and adequate for achieving the PDOs and targets as set out in the PAD. 16. Lessons from QEFA1 were incorporated into the project design. A number of pilots were fielded and its results and lessons taken into account. Block grants to schools were financed during QEFA1, showing increased transparency and greater accountability. Other activities supported during Phase I were initiatives to reduce repetition and dropout rates, an adult basic education program, and assessments of students’ learning undertaken at the decentralized level. Specifically, lessons on implementation arrangements, donor coordination, hierarchy, and project leadership were streamlined into the project design. 17. Quality Enhancement Review (QER) suggestions were taken into account. The QER rated project preparation as satisfactory. The PDOs and components were positively rated at that time. The main suggestions concentrated, on: (i) reducing the scope and the number of sub-components and activities; (ii) prioritizing the activities under the quality component and giving them a strategic framework; and (iii) clearly explaining how some strategies were going to be implemented. Nevertheless, there were also some shortcomings at this stage: 18. The Results Framework included too many indicators for measuring outcomes. The Results Framework included a large number of indicators to measure project outcomes and some indicators measured outcomes which were not explicit project objectives (such as budget management indicators). Moreover, several of these indicators were not defined with enough specificity, which created difficulties in monitoring them (in some cases it was unfeasible to monitor them at all) and/or their targets were not well-defined. Further, the outcome indicators in the PAD and in the CA were not entirely the same. 19. The implementation capacity of local governments was not adequately assessed. The Project failed to properly assess the capacity of local governments to implement one of twenty one sub-components/activities that aimed at upgrading elementary schools and bringing them up to standards through the construction of point water and latrines. This shortcoming was overcome after the mid-term review (MTR) by switching the implementation responsibilities to the RDA1s.
1 ARDs are government institutions created in 1996 as public local agencies with an administrative and financial autonomy to provide technical assistance, capacity building, and implementation support to municipalities. In 2008, the World Bank financed project, the National Local Development Program, provided support to strengthen them. They are currently fully operational as local development institutions.
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20. These shortcomings were successfully addressed during the 2010 restructuring of the project as outlined below.
2.2 Implementation 21. Strong Government commitment to long-term sector goals and policies. The solid commitment to the sector policies for universal completion of elementary education, improvement of quality at all levels, elimination of inequity in terms of gender and income, deepening the decentralization efforts and expanding the role of local communities in education contained in the PDEF contributed to the satisfactory implementation of the Project. The Government maintained its commitment to improving public expenditure management by working with IDA on sector studies on this issue. The Government used the annual report of the status of education carried out by the DPRE and the evaluation carried out by an external institution (the Consortium for the Social and Economic Research – CRES) as an opportunity to monitor performance and review policies and practices if needed. Implementation was not significantly affected by the presidential elections and change in Government that took place shortly after Project approval. 22. Solid involvement of senior staff in the Ministry of Education (MEN). The Minister of Education and the Directors of the different departments were deeply involved in the implementation of the Project’s activities. Implementation benefited from the involvement of the technical units, which were responsible for implementing the project. The Project was implemented by the MEN and its technical directorates, and not by a separate project coordination unit. The DAGE handled all of the fiduciary matters and had trained staff on board when implementation started. 23. Strong coordination among the departments involved in project implementation. The DPRE was responsible for the coordination of the activities included in the PDEF, including those of the Project. The project team understood the importance of creating a Steering Committee led by the office of the Minister of Education which included representatives of those departments who were responsible for implementing project activities and this was described in the PAD. This arrangement contributed to overcome the impasse experienced at times during Phase I, given the hierarchical issues among the directorates. 24. Activities to accompany implementation were key to the successful implementation of the project. The deconcentrated levels of the MEN (education structures at the regional level – Inspection d’Académie (IA) and education structures at the district level – Inspection départementale de l’éducation nationale (IDEN)) carried out regular visits to the schools to accompany the teachers and principals in the implementation of the new curriculum, the use of manuals and other pedagogical materials, the preparation and implementation of the school projects. The visits provided first-hand knowledge of the problems and provided relevant information to prepare the activities for the Regional Training Plans (Plans Académiques de Formation – PAFs) and the Quality Action Plans (Plans d’ actions de Qualité – PAQs). 25. Successful implementation of school projects, while overcoming some initial difficulties. Implementation of school projects was, in general, satisfactory. Elementary and secondary
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schools successfully executed their projects and took advantage of the training and planning exercises to engage their communities. One of the difficulties in the Project’s early stages was that due to competing needs, some schools had difficulties using the funding for the intended objectives. In some instances, resources were spent on infrastructure upgrades instead of on pedagogical items, out of need and lack of other sources of funding. In order to help the schools, the MEN prepared new guidelines to re-focus the content of Project on activities to improve quality, solve pedagogical problems, and increase learning achievements. School projects were affected by the delays in receiving resources, which in some instances, were more than a year. In the Project’s early stages, there were delays in opening accounts by the school management committees (Comités de gestion scolaire – CGEs) and the planning of activities at some schools. These were in large part due to insufficient communication between IAs, IDENs and CGEs which was subsequently rectified. 26. Weak implementation capacity of local governments. Local governments were supposed to implement the sub-component supporting the construction of water points and toilet blocks in existing elementary schools. By MTR, implementation of this activity had not begun due to the local governments’ limited capacity. Therefore, the ARDs in Diourbel, Kaolack, Kaffrine, Louga, Thies and Saint Louis worked in a timely and efficient manner to implement these activities. 27. Higher than expected cost for the water points. The cost of constructing water points was underestimated at the time of project preparation, due to the uncertainty of where the water points would be built. The technical study revealed greater physical and geographical challenges than had been anticipated. Specifically, that it was necessary to dig deeper in some areas than in others, due to the depth of the aquifers. This resulted in a lower than envisaged number of water points that could be built with project funding.
2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization Design 28. The PAD included an M&E framework agreed with the Government, including a set of outcome and implementation progress indicators, with baseline values and targets for most of them, though the targets were vague or not defined for some outcome indicators. Together with the project indicators, the Government and the donors agreed on a matrix of Education for All-Fast Track Initiative (EFA-FTI) indicators to be reviewed annually pertaining to the education sector. These indicators were closely connected to the project indicators. The Project included M&E activities for each of the components, and the costs of these were explicitly reflected in the PAD. Implementation 29. As described in the PAD, the DPRE was responsible for leading and coordinating the M&E activities, with inputs from the directorates at central level and the regional and local levels. The DEE and the Directorate for Middle and General Secondary Schools (Direction de l’Enseignement Moyen et Secondaire General, DEMSG) gathered key implementation information coming from the IDENs, related to the implementation of activities at the school
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level. School principals, teachers and inspectors of the IDEN and IAs monitored the progress of activities. 30. The Project supported the preparation of key monitoring reports: (i) the Annual Economic and Financial Report of the PDEF, which included a review of the expenditures and carried out an analysis of the education system’s performance in terms of access, quality and other aspects such as supply and demand, internal efficiency, and equity in the provision of education services; (ii) the Annual Education Status Report of, which analyzes the performance of the different education levels; and (iii) other evaluations carried out by the evaluation department (INEADE) on the implementation of the school projects and the learning assessments carried out in 2010 and 2012 (Système National d’Evaluation des Rendements Scolaires – SNERS). 31. The decentralized levels (IDENs) developed standardized learning outcomes tests to capture the situation at the schools in their geographic areas at the beginning and at the end of the school year. The results were shared with the school teachers and the regional inspectors and were used as guidance tools to define priority areas of intervention. By project completion there were some regions working together to harmonize the content, the implementation modalities and timing of the tests. Utilization 32. The DPRE has carried out an assessment of the progress in the implementation of the PDEF at the end of each of its three phases. This exercise allowed for reflection on the achievements, problems and lessons learned during each phase. This analysis and information has been used to adjust the activities in support of the program for the following phase. The DPRE used the monitoring tools to refocus and adjust the project activities. This was the case with the school projects in elementary and lower secondary schools, which were refocused after the evaluation of the first phase of the PDEF. The IAs and the IDENs have been using the standardized tests developed at de-concentrated level as diagnostic tools, to assess the priority areas to tackle. 33. Nevertheless, there were shortcomings in the use of the information gathered under the evaluations at central and deconcentrated level. Both in the case of the INEADE and the IDENs, there was little sharing of information with the schools, once the standardized tests were carried out. Before project completion, there had been no systematic efforts to disseminate the results of the analysis. 2.4 Safeguard and Fiduciary Compliance 34. Financial management: Financial management (FM) throughout the life of the Project is rated as satisfactory. The Borrower’s team had experience in managing other IDA projects. In general, the experience of staff in MEN (DAGE) facilitated a satisfactory financial performance. External annual audit reports were carried out on time, and were unqualified. The Government implemented the recommendations in the auditor’s report by project completion. 35. Procurement: In general, procurement was deemed satisfactory during project implementation. The Project benefited from the capacity built around the procurement team
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during Phase I. Thus a well-trained team was in charge of the procurement of the project. The supervision missions found the quality of the annual procurement plans and the documentation and organization of the procurement activities adequate. As mentioned in section 2, the main difficulty revolved around the lack of capacity of the local governments (municipalities) to carry out the implementation of the infrastructure upgrades at the schools which was resolved by transferring that responsibility to the regional development agencies. 36. Environmental and social aspects. An Environmental and Social Management Framework (ESMF) was prepared during appraisal to mitigate the potential negative impacts of school construction, since the exact location of the schools had not been identified. During implementation, specific environmental clauses were not required during the bidding process. There were specific requirements introduced and addressed during the bidding and in facilities construction related to social concerns (ramps for the handicapped, separation of latrines by gender) were adequately addressed.
37. No adverse environmental effects occurred as a result of the construction of secondary schools. Nevertheless, there were certain aspects during construction that required attention to ensure standards were followed in managing school construction, such as cleaning the sites after completing the building of the school as well as landscaping and grading of the terrains around the schools. The School Construction Department followed up on these shortcomings. In order to emphasize the importance of the environmental aspects, a collaboration agreement between the DPRE and regional level of the Directorate for the environment was signed before project completion. 38. A Resettlement Policy Framework (RPF) was prepared at the time of appraisal as well. There were no resettlement issues with regards to the construction of the secondary schools, latrines, and water points. The land where schools would be built was given by the communities and the process of selecting the location of the new schools to be built was highly participatory.
2.5 Post-completion Operation/Next Phase 39. An extensive evaluation of the PDEF was carried out by the CRES, before implementing a new long-term sector program covering the period from 2012 to 2022. The Government is incorporating the main findings of the evaluations of the different activities supported by this project (such as the use of teaching and learning manuals) in the design of the next project. 40. The Government has taken steps to improve human resources management, seeking a more efficient use of financial resources in order to free fiscal space to better finance quality inputs and pedagogical support. In 2009 and 2010 the MEN carried out an audit of personnel. Another one is being carried out in 2012 with the process being led by the Human Resources Department with biometric identification. 41. The Project contributed to further the decentralization and de-concentration process. It is expected that achievements in this area will continue, with the signature of performance agreements, based on results improving the management and efficiency of the provision of education services.
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42. The Project financed several studies on higher education which contributed to the preparation of a project in this sector and on technical and vocational education. 43. The completion of the Project on June 30, 2012 meant that the national budget was responsible for providing the resources for the activities included in the Project. At the time of the implementation and completions results report (ICR) preparation, the Government continued to provide additional recurrent budget to IAs, IDENs, and schools. However, more resources are needed to continue to finance all activities that the Project had financed notably: (i) more pedagogic support at the school level and financing school projects for the new school year; and (ii) funding some information technology (IT) experts’ positions in the MEN, hired with project support. The MEN was actively working to provide continuity through the reallocation and training of human resources, to handle these key tasks.
3. Assessment of Outcomes
3.1 Relevance of Objectives, Design and Implementation 44. The PDO was highly relevant at the time of appraisal and it remains highly relevant today. The PDO – improving the quality of education, in support of achieving universal quality primary education for all students (an MDG) – remains the most important objective of the Government for the sector. The Project supported the current Government’s goal of implementing a ten-year mandatory basic education program, which merges primary and junior secondary levels. 45. The PDO was in line with the CAS (March 2003) and with the subsequent CAS (FY07-10). It was also aligned with the Government’s Poverty Reduction Strategy (2006-2010). 46. The Project design was relevant, with an adequate choice of components and sub-components to achieve the PDOs. The IDA team took into consideration advice provided during the QER to reduce the number of activities and focus the Project’s interventions in areas of comparative advantage, in a context where IDA was not the largest donor in the country. 47. The Project design was based on Phase I (QEFA1). A lot of activities of Phase I were discontinued and Phase II was more focused on a smaller number of activities in which IDA had an advantage and other donors were not working. These areas included: improving access to junior secondary level, supporting activities targeting the schools, training a broad group of education actors and continuing to strengthen the MEN at all levels. 48. The implementation arrangements built on the experience of QEFA1. Project activities were implemented by the technical units of the MEN at the central and decentralized levels. The PAD and the operations manual (OM) of the Project successfully defined the implementation responsibilities, which contributed to the timely implementation. The PAD introduced a steering committee, led by the Minister of Education, which included the DPRE and other directorates, providing a mechanism and forum to resolve any differences.
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49. Weaknesses in design: the capacity of the local governments to implement construction activities was overestimated and the Results Framework was complicated.
3.2 Achievement of Project Development Objectives 50. Since the Project was restructured in 2010 and key performance indicators were changed or dropped, the achievement of the PDO is measured against the key performance indicators before and after the restructuring. Achievement of PDOs before restructuring 51. Before project restructuring, the achievement of the PDO is rated as moderately satisfactory. Some of the indicators measuring the progress towards the achievement of the PDO showed significant progress or had been met: (i) in terms of access, the gross intake rate had surpassed the end-of-project target (103%); (ii) girls represented more than 50% of enrollments in 1rst grade (versus a target of 49.3%); (iii) the transition rate between primary and secondary had surpassed the end-of-project target as well (59.6% versus a target of 57%); and (iv) the government continued its commitment to the education sector allocating budgetary resources in a context of financial crisis which allowed the enrollment of students in primary and hiring teachers. The primary completion rate had increased to 59.6% (versus a target of 78% by project completion), mainly explained by high dropout rates in 1rst and 5th grades. 52. The Project activities contributed to these achievements. During this phase of the Project, some activities were implemented successfully: (i) in terms of quality, the school projects as well as the regional training and quality improvement plans (PAFs and PAQs); (ii) activities related to the improvement of the assessment system; (iii) the alphabetization program for young and adults; (iv) in terms of management, there were steps towards the elaboration of a single personnel database and the redefinition of functions of the decentralized levels; (v) The data unit of the MEN (CIME) developed a management tool based on results (SYSGAR), which represented the initial efforts to measure the performance of each unit based on results.
53. Nevertheless, there were challenges to implement some activities, key to the achievement of the PDO. In terms of quality, there were significant delays in the acquisition of manuals with financing from the Project. In terms of access, there were significant delays in the construction of secondary schools and the activities to upgrade the schools. The communication between the central and decentralized level was not as fluid as expected and the coordination among all of the activities under implementation to improve the quality of learning was weak. Regarding the strengthening of the management of the education sector, the Performance Frameworks were not implemented at this stage of the project. 54. The Government, IDA and other donors agreed that the PCR target established in the PAD was not going to be achieved by the original closing date of December 31, 2010. The teams decided to restructure the Project to better achieve the PDO, by extending the closing date, revising the results framework and refocusing the project activities that aimed at improving quality. Achievement of PDO after restructuring
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55. After the Project’s restructuring, the achievement of the PDO is rated as satisfactory. The Project achieved its PDO of improving teaching and learning practices in the classroom in order to assist the Government in improving education quality while maintaining its focus on reaching universal primary completion by 2015. The achievement of the PDO was measured by the following indicators: Improving access and retention 56. The improvement of access is rated as satisfactory. The outcome indicators included in the PAD were mostly achieved and their targets surpassed. The gross enrollment rate (GER) in primary increased from 79 percent in 2005 to 94.7 percent in 2012. This result is slightly lower than the 96 percent target indicated in the PAD. The main reason for improvements but not enough to reach the target GER has been the improvements in the internal efficiency in the education system. The gross intake rate in the first year of primary increased to 106 percent in 2011-2012 (target of 103 percent). The gender parity index was 1.1 in 2012 in favor of girls, versus 0.97 in 2005. Finally, the PCR improved significantly (from 48.7 percent in 2004) reaching 66.9 percent in 2011-2012, surpassing the 65 percent target. Improving retention was moderately satisfactory as dropout rates in primary improved but fell short of the target set at restructuring. 57. Though the improvement in the above-mentioned indicators cannot be solely attributed to its interventions2, the Project contributed to the achievement of these outcomes in several ways. It supported improvements in critical basic infrastructure in elementary schools, through the construction of 125 water points and 248 six-toilet blocks in existing elementary schools. These improvements significantly upgraded the schools, transforming them into friendlier spaces. It is reasonable to infer that these improvements contributed to the enrollment of more girls in primary. 58. The Project supported the construction of 28 lower secondary schools, which added a total of 2,800 new school spaces in the regions of Louga, Matam, Diourbel and Kaolak. Each school is composed of 4 classrooms, a laboratory and a library, administrative offices, two blocks of toilets, surrounding walls and a guard booth. The number of enrolled students in these schools largely surpassed the target goal of 2,800: close to 15,000 students (50 percent of whom were girls). This activity directly contributed to the improvement of the transition rate between primary and lower secondary, reaching 88 percent between 2010/2011 and 2011/12 (versus 48.30 percent in 2005). This activity contributed to improving the PCR and the repetition rates in Cours d’enseignement moyen 1 (CM1) and Cours d’enseignement moyen 2 (CM2) (equivalent to Grades 4 and 5). It contributed to improving the GER in lower secondary from 33 percent in 2006 to 53 percent in 2011. 59. The Project supported literacy courses (300 hours) to 53,250 adults (90 percent of whom were women living primarily in rural areas). This achievement contributed to an increase in enrollment at all levels and to families’ giving girls more time to do homework at home. 2 The Government built an average of 1,081 classrooms per year during the life of the project, partially fulfilling the commitment with IDA (versus a target of 1,500 classrooms per year).
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60. The improvement in the PCR was supported by two other project activities: (i) the development and implementation of strategies to improve the quality of education; and (ii) the implementation of remedial summer courses for students in primary and the implementation of the PAQs prepared and implemented by the IDENs. Improving education quality, with a focus on elementary education 61. Improving the quality of education is rated as satisfactory. The achievement of this objective was to be measured by: (i) a reduction in the repetition rate in primary; (ii) a reduction in the dropout rate; and (iii) an increase in the transition rate between primary and secondary. The Project achieved the agreed upon targets. Repetition rates in primary were significantly reduced from 13.9 percent at the beginning of the Project to 3.2 percent by project completion (versus a target of 6.3 percent). The dropout rate in primary declined from 13 percent to 9 percent, short of the 5 percent target. The transition rate increased by 40 percentage points as mentioned above. 62. Though there were certainly other influencing factors, the Project contributed to these achievements, financing activities which concentrated on providing and improving learning and teaching inputs, strengthening its pedagogical use and providing training. The Project succeeded in improving the quality of education in particular at the primary level and contributed to strengthening the quality of the skills and services offered by education personnel (IAs, IDENs and teachers in schools). The project contributed to these outcomes through several interventions: At the national level 63. Acquisition of pedagogical inputs: The project provided support to buy and distribute pedagogical materials (1,812,000 pedagogical manuals and reading books) to improve classroom practices for primary level. For the secondary level, it supported the acquisition of 200,000 pedagogical manuals and 202,000 mathematics manuals (or textbooks). IDA support was part of the combined donors’ efforts to acquire more than 13,000,000 pedagogical materials. The Project provided resources to 779 schools to establish 3,116 reading corners in 4 classes Cours élémentaire première année (CE1), Cours élémentaire deuxième année (CE2), CM1, CM2 equivalent to Grades 2 through 5) equipped with 30 books each. 64. Financing of the preparation of regional training and quality programs (PAQs and PAFs): The Project financed the development of training activities by the MEN, which were provided in the context of the regional training and quality programs. The modules concentrated on improving the use of the pedagogical materials provided to the schools and on accompanying teachers in the implementation of the new curriculum. The training courses concentrated on: improvement of reading instruction, provision of pedagogic support to teachers at the classroom level, focusing on learning assessment, remediation techniques, materials development by school principals and head teachers. Training modules included leadership and management courses for school principals and inspectors at the district and regional levels. There were activities to develop research and action tools at the level of IAs and IDENs to address problems they
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identified at the district and regional levels, respectively. The ensemble of courses provided was more oriented to school heads and supervisors than to classroom teachers. There was little training on specific techniques to improve reading and comprehension, even though this shortcoming was one of the most critical to overcome to improve learning. A total of 28,200 education professionals received training (an estimated 75 percent were teachers at the primary level, since the IAs and IDENs did not provide detailed enough information on training participants). 65. Training, follow-up and support activities were carried out at the District Education Authorities (Inspections Departementales de l’ Education Nationale, IDENs) level. The INEADE evaluated twice the use of these materials in primary school classrooms. These evaluations showed that the pedagogical manuals were not sufficiently used due an insufficient training of teachers, an insufficient number of manuals reaching all primary schools and the fact that the manuals did not integrate the current pedagogical practices. 66. Improvement of the learning assessment system: The Project contributed to the improvement of assessments of learning and examination systems, in an effort to provide key information for the policy makers. The INEADE carried out with project support, two rounds of national learning assessment evaluations (SNERS) in 2010 and 2012 for Grades cours préparatoire (CP)), CE2 and CM2. While the evaluations are not comparable due to changes in the curricula that were made during the life of the Project, the results were and will be used to aid policy makers adjust activities and interventions. At the regional level 67. The Project provided technical and financial support to implement the content of two key management tools: the PAQs and PAFs. IDA provided financial support for the preparation of the PAFs, and its implementation at the regional level. It financed in-service training and classroom observations (carried out by the IDEN’s inspectors) in order to determine how the learning materials were actually being used in the classrooms. 68. The Regions, represented by the IAs, prepared regional training plans. These included activities geared towards improving the quality of instruction and learning. The PAFs included training on the use of learning materials by teachers; training of school heads, teachers in elementary and primary schools, staff in the IAs and the IDENs (inspectors, pedagogic advisors and teacher trainers in regional teacher training centers and in the training of teacher trainers.. The training modules were developed at the national level by the MEN and the actual training for teachers in the use of the learning materials was carried out in the regional centers. 69. The Project provided financing to implement the content of the PAQs to improve quality of education at de-concentrated and school level. These plans were developed as a response to locally-identified problems related to the low quality of education and to problems identified by IDENs and IAs. To address these problems, strategies were designed and implemented at the local level. The PAQs were prepared at the local level and submitted to the central level for approval. The PAQs received about FCFA 1,055 million (US$2.1 million).
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70. The implementation of the PAQs contributed to the following achievements: trained school principals in the supervision of teachers; provision of direct didactic support to teachers in math and language; elaboration of instruments to monitor the learning progress of students and remedial interventions; development and implementation of standardized tests at IDEN level for math and reading; provision of technical support to schools with weak learning achievements; involvement of the communities in activities to reduce dropout and school failure; studies on the use of mentoring programs by older students; provision of materials to students for pedagogical reinforcement; elaboration of materials and development of strategies to monitor student progress that have been generalized. The PAQs had a direct impact on the reduction of dropouts and school failures, a national priority. 71. The Project supported the improvement of the assessment system (examinations and learning assessments) which included the development of standardized tests that students now take twice a year to monitor progress and to adjust activities at the school level. IDENs created groups by regions and compared test results. In the case of Pikine in Dakar, the IDEN was accompanied by evaluation experts supporting the quality of the process. At the local level
72. The Project financed the development and implementation of school projects (Projets d’ecole and Projets d’etablissement for elementary and lower secondary schools respectively). The school projects supported proposed activities to address quality issues and problems as perceived in each of the schools. These school projects achieved their objective of helping the school community to agree and work on a strategy, as identified by the school, to improve learning and strengthen the leadership of the pedagogical teams. The projects concentrated on different activities: until 2007, the projects financed improvements in infrastructure and acquisition of goods in a broader understanding of elements to improve quality. In 2007, after an evaluation of the school projects during the first phase of the PDEF, the school projects were re-focused to concentrate on improving pedagogical challenges and improving teaching and learning, as quality improvement activities. New operational guidelines for the school projects were produced to achieve the following three outcomes: a reduction in repetition and drop out rates; an improvement in the results for math, French and sciences; and an increase in the effective teaching time in schools. 73. Evaluations of the impact of the school projects on the quality of learning (which was undertaken 2009 and 2011) on a representative sample of schools showed a positive impact on students’ achievements. These evaluations showed that the school projects strengthened achievements in math and French notably in the early grades. The results have shown that Grade 3 students in intervention schools (schools which received the school project grants) performed substantially better in these subjects than Grade 3 students in control schools. In the south, this observed difference in performance was large amounting to over 30 percent of a standard deviation for mathematics and over 40 percent for French. Clearly the program had a large and statistically significant effect for this group. The report concluded that that a well-targeted program improving resources for schools (as a permanent increase in school spending) would likely have an important effect on student performance.
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74. The school principal, teachers and CGEs were trained in the preparation of these projects by the IDENs. The school projects had an impact in improving quality. These projects supported the acquisition of pedagogical and non-pedagogical inputs, contributed to make the relationship with the communities more dynamic, involved the teachers and the CGEs in the quality aspects of the school, and contributed to introducing and strengthening a culture of accountability and management of resources at local level, with the main objective of improving the quality of learning. Strengthening management at central and decentralized levels 75. Strengthening the MEN’s management capacity is considered satisfactory. The achievement of this outcome was to be measured by the following indicators, as modified at MTR:
• An increase in the education recurrent budget as a share of the Government’s recurrent budget, excluding the debt service: this indicator was surpassed, reaching 34 percent (versus a 33 percent target for 2011).
• An increase in the hours of instructional time: this indicator was almost achieved reaching 806 hours per school year which was below the 900 hours targeted. This was a significant increase from 700 hours in 2005. This was achieved by extending the school year and by regularly monitoring the performance of each district in achieving this target.
76. The Project supported the strengthening of the education management system at the central, de-concentrated and decentralized levels. It provided support to carry out an analysis and an audit of the MEN contributing to better define roles and function at each level. The Project supported the creation of a working group who carried out an organizational diagnostic and analyzed function and roles of the IAs and IDENs. As a result of this exercise, several recommendations were compiled in a document identifying the recruitment, training and human resource needs for the IAs and IDENs. Implementation of these recommendations will deepen the de-centralization and de-concentration process and improve the quality of human resources at regional level. The Project reinforced the FM capacity at the IAs by financing an FM officer, strengthening the capacity in this area. This person was responsible for managing the contributions by different sources to be used by the IAs and IDENs. 77. Development and implementation of Performance Management Contracts (PMCs- Cadres de Performances): The project supported the development of PMCs, supporting the Government efforts to move to results based performance. By Project completion all Directorates and Inspectorates (IA and IDEN) had signed performance contracts. The contracts were signed between the Minister and each of the Directors, including the IAs and IDENs. Contracts started to be signed in 2010 and finally the DAGE and the DHR signed theirs before Project completion. Its implementation is contributing to a change in culture towards greater accountability and capacity to implement results-based management at all levels. The Project supported the development of an information system to monitor the implementation of the performance contracts.
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78. The Project provided improvements in infrastructure and equipment for information technology at the central level of the MEN as well as at the IDEN and IA levels. The Project financed equipment upgrades for the different units. This activity has supported capacity strengthening at all levels in management and leadership. It provided training for over 800 staff at central and decentralized level, contributing to the adoption of a culture of IT within Ministry of education IT Unit (the Cellule Informatique du Ministère de l’ Education, CIME). The CIME developed different software applications for education management. 79. The Project supported the MEN in continuing carrying out statistical campaigns and analyzing the data, surpassing all targets set for this activity. The MEN has made a statistical digest available and disseminated widely each year. In addition, data were analyzed in the Annual Education Status Report and the Economic and Financial Report of the PDEF. 80. The project supported some incipient efforts to improve the management of human resources. A personnel audit was carried out in 2009 and in 2010 another audit of contractual staff was carried out, allowing implementing some very limited measures to improve the efficient use of human resources. Nevertheless, interventions in this area fell short of needs and expectations.
81. The Project supported the Government efforts regarding the budget reform in the education sector, within the country’s overall budget reform program. The project supported MEN’s efforts in developing and implementing a budget tool Medium term expenditure framework (MTEF) or Cadre de Depenses Sectorielles à Moyen Termes (CDSMT) based on programs and results. The main achievements in this area were: (i) the use of a medium term budget tool, which clearly established a connection between the programs in the budget and their allocations; (ii) the use of a sector approach; (iii) the introduction of a performance and accountability culture and greater participation in the budget preparation process; (iv) an improvement in the visualization of the expenditures in the short and medium term. The CMSDT contributed to a better link between allocated budget resources to sector priorities as reflected in the CDSMT.
3.3 Efficiency 82. A cost effectiveness analysis of the operations within the sectoral context was done at appraisal in addition to a fiscal impact and sustainability analysis. In the absence of available data on households’ expenditure, a project economic analysis with a Net Present Value or an Internal Rate of Return was not conducted.. The current analysis at ICR is focusing on the project contribution to the government efficiency program in the education sector, the effectiveness in the implementation of the project, and the externalities and results to which the project contributed. 83. The project supported Government’s efforts to improve the efficiency of its education system notably the primary education and junior secondary education sectors. The reduction of the repetition rate in primary education, the sharp increase of the transition rate between primary and secondary education, the reduction of the dropout rate in primary, and reduction of the average salary unit costs notably in junior secondary has improved the overall efficiency of the education system by reducing repetition and dropout rates.
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84. Cost effectiveness Project implementation has been efficient in delivering the expected outputs. While 1000 schools were targeted to receive grants, the project provided grants to 1473 schools, junior secondary schools were organized to host more than the 2,800 students targeted during preparation; 53,000 adults were trained in literacy classes while 50,000 were targeted. All other expected outputs planned in the project were delivered, and most of the time above the targets at the exception of the number of additional water points and sanitary blocs due to a lack of good knowledge of the hydrological situation at the points where the water points were supposed to be set up. Regarding the unit costs of the construction, the architectural design are only comparable with the design used under the government budget and USAID. The final costs show that a junior secondary school costs FCFA1053 million for USAID project, FCFA98 million for the Government investment budget and for the EFA FTI project, incurring savings of FCFA 7 million or approximately $14,000. 85. Social rates of return. The Project contributed to the government agenda of improving quality and participation in schooling that generated important externalities. An analysis of the rate of return was done using the 2011 Household Survey. The social return of primary education is 4.9 percent while the private return is even higher with a rate of 15.9 percent. The private return of junior secondary is higher at 13 percent. Similarly, social returns in junior secondary schools are 11 percent, higher than primary education. Analysis of the 2011 household survey shows a positive impact of primary and secondary education on health outcomes. The infant mortality in 2011 was 97/1,000 for children with a mother without primary school, 63/1,000 when the mother has primary school, and 36/1000 when the mother has some secondary school. Similar outcomes are evident for malnutrition or knowledge of HIV-AIDS.
3.4 Justification of Overall Outcome Rating Rating: Moderately Satisfactory 86. The overall outcome of the project is rated as moderately satisfactory due to the following:
• Relevance was substantial: The PDOs were relevant and remained relevant until Project completion. The design took lessons from the implementation of Phase I to improve the proposed components and implementation arrangements. Nevertheless there were some shortcomings: the design did not adequately assess the challenges to be faced at the time of upgrading the schools and the weak capacity of local government (rural municipalities) to handle the implementation of the activities; and the results framework included too many indicators and some of them lacked a baseline or defined targets;
• Efficacy was substantial: (i) The Project contributed to the achievement of the main outcomes in terms of increasing access to primary and lower secondary for all students and in particular for girls, contributing to close the gender gap; (ii) It contributed to successfully implement activities to improve the quality of education and further
3 The USAID-financed construction program is managed by the same government entity as for the IDA project. The difference is the inclusion by USAID of community mobilization funds in the school construction program.
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decentralized the management of education services; (iii) It contributed to build capacity by training key actors in the education sector (teachers, inspectors, principals and MEN personnel at central, regional and local levels); finally (iv) The Project contributed to create a culture of monitoring and evaluation at all levels of the MEN. It supported the continuous use of the monitoring and evaluation system to assess the progress on the improvement of teaching and learning at classroom level, identify problems and adjust activities and policies. It kept teachers, principals, district and regional inspectors as well as personnel at central level, focused on quality issues and on achieving results
• Nevertheless, the progress towards the achievement of the PDO was moderately satisfactory in the early period or implementation, which required a restructuring of the Project to better focus some activities and the monitoring and evaluation indicators. Annex 10 contains the weighting of the outcomes in the different implementation periods.
• Efficiency was high: the Project supported the Government’s efforts to improve the efficiency of its education system, contributing to the adaptation of key steps to improve the use of resources in the education sector and improve planning and performance. Project implementation was efficient in delivering the expected outputs.
3.5 Overarching Themes, Other Outcomes and Impacts (a) Poverty Impacts, Gender Aspects, and Social Development 87. The Project provided support to improve the literacy of vulnerable populations. The program financed by the Project benefited around 53,250 adults, 90 percent of them were women, versus a target of 70 percent, surpassing the target. The alphabetization program had positive impact on poor rural women. Most of these belonged to small business associations or economic interest groups, the framework in which they carried out their work. Participants in this program expressed a high degree of satisfaction mainly due to the benefits the training brought to the management of their economic activities. In addition, the training had an additional positive effect on children, whose mothers received more education. The program further built capacity by training 665 staff as facilitators and 1,110 community members, relying on the local governments (les collectivités locales) for implementation. The learning outcomes were measured twice for three of the four cohorts, showing impressive achievements of the competencies they were supposed to achieve. 88. The project has supported the Senegalese Government to close the gender gap in primary and junior secondary schools. Currently, more girls are enrolled and their completion is even higher than for boys. 89. The construction of middle schools under the Project took place in poorer regions of the country, which had a positive impact on gender.
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(b) Institutional Change/Strengthening 90. The implementation of Literacy activities under the Project contributed to strengthening and building capacity. The local government institutions worked together with the IDENs to choose the site to deliver the courses; there was a revision and better definition of the role and responsibilities and of the goal to be achieved by the program. This allowed the local institutions to preside over the management committees managing the alphabetization centers, to analyze the requests and follow up closely the implementation of the courses, and provide proof and testimony of the adequate and true delivery of the courses. Besides, in the context of this program, the National Center for Educational Resources (CNRE), created by the Government, houses since 2009 the coordination and follow up unit (cellule de coordination et de suivi - CCS) which was a separate unit. 91. The school projects in primary and lower secondary schools contributed to dramatically transforming the nature of the relationship between schools and communities. All of the primary schools and their CGEs were trained in the preparation of school improvement projects. The schools became closer to their communities, new pedagogical and non-pedagogical tools were provided to the school, the life of the schools that had receive support from these projects was revived. The interviews with school principals, presidents of CGEs and IDEN inspectors during the ICR mission indicated that the school projects have introduced a mentality of results and accountability. 92. The financing of the PAFs and PAQs contributed to strengthen the decentralization and de-concentration process in Senegal. The execution of these instruments facilitated the transfer of financial resources to the regional and district levels, from the central level to the de-concentrated levels. This enabled IAs and IDENs and eventually the schools, to conceive, develop and implement a set of activities (based on their own and first-hand knowledge of challenges and needs) to improve the quality of teaching and learning. Allocations between PAFs and PAQs are included in Annex 2. Activities to train teachers and supervisors absorbed 70 percent of the budget and classroom observations received 30 percent, putting strong emphasis on the use of the learning materials as a vehicle to improve learning. The PAQS and PAFs were prepared by all of the IDENS and IAs. The process of elaboration and implementation greatly contributed to build capacity at regional and local level. The themes and areas to strengthen the capacity of the teaching force were relevant and in line with the needs identified by the inspectors. 93. The training provided to the MEN staff at the central and decentralized levels on IT contributed to create a culture of information and technology, led by the MEN’s data unit. Around 800 staff received training on IT and internet, as well as specific training on management tools. All directors, heads of departments (around 100 leaders) at the MEN received training on the use of laptops and professional email, which contributed to improving team work and communications. Staff at the IDENs, DAGE and DHR working on personnel issues received training on the software used to generate salary reports. 94. Finally, the Project supported the strengthening of the education management system through the support to the upgrade in hardware and software of the MEN. In particular, it contributed to better management of the resources of the education sector through the
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development of software and tools to generate reliable and updated information on personnel, schools, and the implementation of programs, such as the PDEF. (c) Other Unintended Outcomes and Impacts (positive or negative) There were no other unintended outcomes or impacts.
3.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops (optional for Core ICR, required for ILI, details in annexes) n.a.
4. Assessment of Risk to Development Outcome Rating: Low 95. The risk to the development outcomes is considered low due to the following reasons:
• Strong Government commitment, as shown in the new letter of development policy and the preparation and approval of a new long term education sector plan 2012-2022;
• The Project supported the Government PDEF and it was implemented by the technical units of the MEN that strengthened their capacities;
• The annual budget has increased since 2002 and is being sustained; • Strong donor support of Government sector priorities; and • Strengthening of the institutional capacity at all levels – central, regional and local.
96. Nevertheless, at the time of the ICR the lack of enough budgetary resources available to finance teachers’ support all activities by IAs and IDENs, quality enhancing activities at school level and IT personnel at the MEN posed a challenge to sustain achievements made under the Project. The Government has committed to train MEN personnel to take up these positions and it was gradually fulfilling this commitment at the time of project completion.
5. Assessment of Bank and Borrower Performance
A detailed rating following OPCS guidelines is in annex 10.
5.1 Bank Performance (a) Bank Performance in Ensuring Quality at Entry Rating: Satisfactory 97. The IDA team worked closely with the Borrower during the preparation phase. The team built on the experience of preparing and QEFA1. The team worked in coordination with other donors active in education (USAID, Agence Francaise de Développement (AFD), Japan, CIDA, etc) to harmonize the activities in support of the PDEF. During preparation, emphasis was placed on the participation of stakeholders and the decentralized levels, overcoming a weakness of the preparation of Phase I. The IDA team took into account the recommendation of the QER panel
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which contributed to focus the Project activities. In general, the IDA team overestimated the implementing capacity of the local government. (b) Quality of Supervision Rating: Satisfactory 98. The performance of the IDA team is rated as satisfactory throughout the life of the Project. The IDA team was led by two task team leaders TTLs and the transition was smooth as the new TTL had been part of the preparation team. IDA carried out regular missions and these were well staffed. 99. The supervision team was country-based and collaborated closely with the Borrower to adjust and re-focus the project activities when necessary, showing flexibility in order to support a successful implementation. After the MTR, the IDA team worked with the Borrower to restructure the Project, paying attention to the quality of the monitoring indicators and the feasibility of following up on these regularly, within the context of the M&E context. It focused on addressing the construction issues by involving the ARDs to carry out works supported by the Project. 100. Furthermore, the team worked with the Borrower to extend the closing date of the Project, in light of the time needed to implement activities and use the credit resources. (c) Justification of Rating for Overall Bank Performance Rating: Satisfactory 101. The overall rating is satisfactory due to the Bank’s:
• Good dialogue with the Borrower; • Quality of preparation and coordination with other donors; • Frequent supervision missions and good documentation to illustrate progress and
monitoring; • Flexibility to work with the Borrower to achieve the PDOs; and • Leadership role in guiding donors’ support in terms of developing strategies and M&E as
well as in involving other donors at all stages.
5.2 Borrower Performance (a) Government Performance Rating: Satisfactory 102. The Government showed strong commitment to the policies and objectives in the PDEF which were supported by the Project. During the period 2007-2012, it annually increased the budgetary resources, supporting the increase of the expenditures on education as a percentage of GDP. The Government carried out in a timely manner all of the necessary actions to enable the project to start implementation and to be extended. Finally, the Government complied with all of the activities agreed upon in the framework of the Project, falling short only in the construction of new classrooms in primary and largely exceeding in junior secondary.
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(b) Implementing Agency or Agencies Performance Rating: Satisfactory 103. The MEN was responsible for project implementation. The DPRE was in charge of the technical aspects of the Project and the DAGE was responsible for the fiduciary aspects. The DPRE coordinated with other key directorates (Directorate of Primary Education, Directorate of Secondary Education, Directorate for School Construction, INEADE, CIME) to ensure that the execution of activities was in accordance with the OM for the Project and on time. 104. The regional levels of the MEN were responsible for implementing a significant part of the quality improving activities. The IAs and the IDENs participated actively in the development and execution of activities to improve quality. Despite some delays in gathering and presenting documentation and in having a better communication among themselves and with the central and local levels, they performed adequately, taking advantage of the instruments provided by the Project to develop plans, activities and evaluation tools. 105. The performance of local governments was weak in terms of procurement. Nevertheless, implementation was transferred to the RDAs which had experience and had worked with an IDA-financed project, the National Program for Local Development, who then handled the procurement and implementation responsibilities. (c) Justification of Rating for Overall Borrower Performance Rating: Satisfactory The overall Borrower’s performance is rated satisfactory due to the its:
• Strong commitment to the PDOs; • Adequate budgetary support to implement the PDEF and the Project; • Good dialogue with the IDA team; • Continuous involvement of the Minister and Directors in the MEN; and • Strong participation of the IAs and IDENs.
6. Lessons Learned (both project-specific and of wide general application) 106. PAFs and PAQs were useful and effective instruments in supporting innovative strategies and approaches developed at the local level to improve the quality of education. They were perceived as effective instruments to achieve this objective. An example is the support provided to undertaking standardized tests developed by the regions. It might be useful to provide further technical support by evaluation experts to exploit the potential of these assessments. 107. School projects strengthened the involvement of teachers in aspects of school management. These projects introduced a culture of planning and accountability. The improvements which included providing clear guidelines related to quality education, including
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its features, indicators that should be used to measures quality aspects, and identifying processes for identifying problems and implementing strategies were critical for the Project’s successes. 108. It is crucial to continue to provide support for classroom observations as a way to improve teaching. This tool was an important innovation in identifying the training needs of teachers. It served to ensure that the training received was then was utilized at the classroom level. Following up by providing additional teacher support and pedagogical inputs was an effective way of addressing any problems that had been identified. This observation tool can now be improved and used as a way to monitor and improve teaching techniques at the regional and national levels and possibly shared with other countries in the region. Follow up activities should focus training on ways that identified constraints can be addressed to improve student learning in the classroom, particular among poor students. 109. More training for teachers should focus on preparing teachers to carry out activities to improve reading and language skills. More activities within the PAFs and PAQs to support the acquisition of reading and language skills should be considered in the future as reading and mastery of language are key tools for understanding the content of other subjects (Math and Science). More activities should have concentrated on improving classroom practices and teaching and learning of key core subjects, which would have translated into better learning outcomes. 110. Strong Government commitment is crucial for the achievement of the PDOs. A strong commitment from the Government is a major force behind the success of a program or a project. In the case of Senegal, the Government sustained this commitment by annually providing resources to enable the implementation of policies and activities and worked closely with the donors to harmonize their financial support behind the country’s defined priorities. Despite changes in Minister of Education, there was clear leadership and increased capacity in the key directorates in charge of implementing the project activities (DPRE, DAGE, DEE, etc.) 111. Regular monitoring and evaluation of a program or a project contributes to the achievement of sought outcomes. The MEN, through the DPRE and the INEADE, regularly carried out monitoring activities to follow closely the progress of activities, to gather feedback from actors and beneficiaries and to adjust an activity when necessary. It commissioned independent reviewers as well, such as CERSS, to evaluate the MEN and its activities. The PDEF was assessed at the end of each phase, before starting a new one, in an effort to extract and apply lessons in the future. At the local level, follow up activities had a similar role and were considered essential by inspectors, teachers and principals in making changes at the school level and in the classrooms.
7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners (a) Borrower/implementing agencies See Annex 7 of the ICR (b) Cofinanciers N.A. (c) Other partners and stakeholders N.A.
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Annex 1. Project Costs and Financing
(a) Project Cost by Component (in USD Million equivalent)
Components Appraisal
Estimate (USD millions)
Revised Amounts (USD
millions)
Actual/Latest Estimate (USD
millions)
Percentage of Appraisal
I - Improving access and retention 22.3 22.3 24 108 II – Improving education quality 51.3 52.5 61.12 119 III – Improving management 3.3 2.8 7.37 223 IV- Operations and maintenance 3.1 5.7 5.66 183 Total Baseline Cost 80.0 83.3 Physical Contingencies 3.3 0.00 Price Contingencies 2.3 2.3
Total Project Costs 85.60 85.60 98.15 115
(b) Financing
Source of Funds Type of Cofinancing
Appraisal Estimate
(USD millions)
Actual/Latest Estimate
(USD millions)
Percentage of Appraisal
Borrower 51.60 62.3 120 International Development Association (IDA) 30.00 31.85 106
JAPAN: Ministry of Finance - PHRD Grants 4.00 4.00 100
The IDA financing in SDR benefited from exchange rate fluctuations: The credit amount was SDR20.5 million. The Government contribution was converted at a rate of US$1=FCFA 503. Much of the support for capacity building was to be supported by the Japanese PHRD grant, administered by IDA. IDA and PHRD Grant Financing by Component
Components Appraisal Estimate (USD millions)
Actual/Latest Estimate (USD
millions)
Percentage of Appraisal
I - Improving access and retention 14.80 11.38 77 II – Improving education quality 13.40 10.62 79 III – Improving management 2.90 7.37 254 IV- Operations and maintenance 2.90 5.66 195 PPF reimbursement 0.82
Total Project Costs 34.00 35.85 105 The exchange rate used is US$1 = F CFA 503
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Annex 2. Outputs by Component Component I Sub-component 2.1 Construction of 28 middle schools in four regions. The Project financed the construction of 28 middle schools, adding 2,800 new spaces. The table below shows the new schools by region.
Region Number middle schools Matam 8 Louga 6 Diourbel 6 Kaolack 8
Total 28 In fact, the new middle schools enrolled almost 15,000 students in 2011(with 50 percent of these being girls) as shown in the table below.
CONSTRUCTION of 28 MIDDLE SCHOOLS REGIONS Secondary schools Number of
Keur Mboucky 143 250 393 Dioukoul Mbelbouck 98 156 254
TOTAL 7464 7483 14947 Sub-component 2.b – Bringing elementary schools up to standards. The Project succeeded in supporting upgrades in infrastructure in elementary schools, namely the construction of sanitary blocks and water points. The total number of works was lower than envisaged due to the challenges and costs faced when the actual locations were selected. The details are reflected below.
Region Type of Work Number of Works
KAOLACK Sanitary Blocks 17 Water Points 10
KOLDA Sanitary Blocks 17 Water Points 22
SEDHIOU Sanitary Blocks 18 Water Points 5
TAMBA Sanitary Blocks 43 Water Points 23
KEDOUGOU Sanitary Blocks 13 Water Points 11
DIOURBEL Sanitary Blocks 30 Water Points
LOUGA Sanitary Blocks 57 Water Points 24
THIES Sanitary Blocks 23 Water Points 18
Saint-Louis Sanitary Blocks 30
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Region Type of Work Number of Works Water Points 12
TOTAL PROGRAM
Sanitary Blocks 248 Water Points 125
Sub-component 2.C – Literacy Courses for rural populations. The Project financed literacy courses for 53,250 beneficiaries (versus a target of 50,000), women representing 90 percent of the total (versus a target of 70 percent). Component II – Improving the Quality with a focus on Elementary Subcomponent 2.A – Block grants to schools and local education structures School Projects in primary and secondary schools A total of 1,473 school projects were financed, amply surpassing the target of 1,000 projects in elementary schools. In secondary schools, 86 were financed, but no target was set. The average amount per school project was FCFA 1.5 million (US$3,000). The school projects concentrated on the following activities:
• Acquisition of didactic material and resource books; • Acquisition of furniture for the schools; • Training for the pedagogical teams and the CGE; • Activities to increase the thresholds in Mathematics and French; • Improvement of repetition and dropout rates; • Activities to improve the effective teaching/learning time; • Organization of remedial courses and teaching additional time to students with
difficulties; • Elaboration of didactic materials; • Piloting of evaluations and student supervision and accompanying; • Activities to promote social sensitization and mobilization; and • Reading activities, student competitions;
Summer Program: The project supported the implementation of remedial summer courses for students in difficulties in Mathematics and reading. A total of 11,802 students received the courses in 2010 and 12,144 students in 2011. The beneficiaries were located in the following IDENs: Parcelles Assainies, Pikine, Tivaoune, Mbour, Kebemer, Louga, Fatick, Kaolack, Bambey and Diourbel. Subcomponent 2.B - Provision of didactic materials
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The Project contributed, as part of an effort supported by a group of donors, to the acquisition of learning materials as follows:
Activity Level Quantity Cost (US$) Provision of Manuals on Mathematics
Lower secondary
202,000 777,077
Re-impression of school manuals
Primary 1,809,008 1,161,786
The Project contributed to the creation of reading corners in schools: a total of 779 schools created a total of 3,116 reading corners in the regions of Dakar, Kaolack, Kaffrine, Tambacounda, Thies, Doiurbel, Fatick, Louga and Kedougou. These were created in four classes: CE1, CE2, CM1 and CM2. Each reading corner was equipped with 30 reading books. Subcomponent 2.C Training and Strengthening Assessment The Project supported the preparation and implementation of the Regional Training Plans (PAF) and the Quality Action Plans (PAQ), in each of the regional structures (Inspections d’Académie- IA). The table below summarizes the training areas financed under the PAFs and the amounts allocated to PAFs and PAQs.
Regional Training Plans (Plans Academiques de
Formation)
Plans d'action qualité TOTAL/IA
% per IA
Regions (I.A.)
Training on the Preparation of PAQs
Training on the use of didactic materials
Training on the observation of the use of learning materials
Total 28,162 100.00% 100.00% 1,163,680,316 Subcomponent 2.D - National Assessments The Project provided continuous support to the INEADE during the regular process of evaluations. Two main learning assessments were carried out with Project support: (i) one in 2010, an evaluation of learning assessment for CP, CE2 and CM2 was carried out and (ii) a learning assessment of the same grades was carried out in 2012.
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Subcomponent 2.E - Studies in Post Primaries The following studies were financed under the Project:
Survey on Public Expenditures Study on Drop out in primary education Partnership for improving the learning outcomes (Partenariat pour l'amélioration des rendements internes - PARI) Analysis of Higher Education sector Evaluation et actualisation du PRC CRES Etude sur politique Enseignement privé Pedagogic Audit of the Higher Education Institutions Environmental and Social Management Framework Follow up on the impact of School Projects Studies Technical and Professional Education Accompagnement pour le développement du SNERS Analyse sociale du PGF-Sup Diagnostic & elaboration of the PAFs for IA/IDEN Elaboration of the Regional Training Plans IA/IDEN National study on the impact of social conflicts Reorganization of the Regional Structures IA/IDEN Elaboration of a simulation model
Component III – Strengthening management of the Education System. This component succeeded in supporting the strengthening management of the education system. The Project financed activities to: (i) support institutional reforms in the education sector; (ii) support the implementation of budget reforms in the context of the medium term budget framework; (iii) improve the collection and analysis of data; and (iv) efforts to improve the management of human resources. The main achievements and outputs of this component were:
1. The creation of a working group to carry out a diagnostic of the MEN, the IAs and IDENs, in order to reorganize the decentralized levels of the MEN, strengthening their capacity and aligning them with their functions and responsibilities;
2. The elaboration and signature of Performance Frameworks by all of the Directorates at central level, the eleven IAs (regions) and forty three IDENs (districts) in the MEN. An information management tool – SYSGAR - was developed to support the efforts to implement a results-based management system;
3. Hiring financial officers for the regional structures, contributing to strengthening the management capacity of the increasing amount of resources transferred to the regional and district levels;
4. Elaboration of an audit of human resources in 2009 and an audit of contractual personnel in 2010;
5. Support for the implementation of the medium term budgetary framework (CDSMT);
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6. Development of software in the areas of budget, personnel management, school management among others. CIME developed several IT education management tools, in collaboration with others (UNESCO, DPRE, DEMSG): (i) CODECO, a tool to provide a code to the schools; (ii) FINPRONET, a tool for financial management which allows management of the budget in real time, manage the procurement process and the expenses among; (iii) SYSGAR, a web-based tool based on results-based management for planning, monitoring and evaluation, which was key to monitor the implementation of the PDEF; (iv) PLANETE: a tool to improve the administrative and pedagogic management of schools at all levels; (v) GESTYLCO, a tool that allows to capture information on secondary schools at the beginning of the school year on the building, personnel, students, examinations, etc; (vi) PETTAO, an intranet portal which allows the administrative staff of the central and decentralized levels (about 3,500 people) to share information; (vi) FUP, the single personnel file, which has allowed improvements in personnel management;
7. Provision of hardware and software for the central, regional and district levels of the MEN: around 1,200 computers (desktops, laptops and servers) were acquired for the directorates at central level. Each of the 11 IAs received ten desktops, two laptops, three printers, one server, one router and one switch. Each of the 43 IDENs received five desktops, one laptop, three printers, one server and one switch. The central buildings of the MEN and of the Ministry of Technical Education were upgraded to connect the computers provided to intranet and internet and among themselves through WIFI. The Ministry of Education data unit was equipped with 13 servers and one fiber optic connection to the Government’s intranet;
8. Training on IT to around 800 staff working at the central level and at the regions and districts. Specific training was given to staff working on different areas such as statistics management, salary reports; financial management of the PDEF; etc.
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Annex 3. Economic and Financial Analysis A cost effectiveness analysis of the operations within the sectoral context was done at appraisal in addition to a fiscal impact and sustainability analysis. In the absence of data on households ‘expenditure, the project economic analysis with a Net Present Value or an Internal Rate of Return was not carried out. The current analysis at ICR is focusing on the project contribution to the government efficiency program in the education sector, the effectiveness in the implementation of the project, and the externalities and results to which the project contributed. The project supported Government’s efforts to improve the efficiency of its education system notably the primary education and junior secondary education sectors. The reduction of the repetition rate in primary education, the sharp increase of the transition rate between primary and secondary education, the reduction of the dropout rate in primary, and reduction of the average salary unit costs notably in junior secondary has improved the overall efficiency of the education system by reducing repetition and dropout rates. Cost effectiveness Project implementation has been efficient in delivering the expected outputs. While 1000 schools were targeted to receive grants, the project provided grants to 1473 schools, junior secondary schools were organized to host more than the 2,800 students targeted during preparation; 53,000 adults were trained in literacy classes while 50,000 were targeted. All other expected outputs planned in the project were delivered, and most of the time above the targets at the exception of the number of additional water points and sanitary blocs due to a lack of good knowledge of the hydrological situation at the points where the water points were supposed to be set up. Regarding the unit costs of the construction, the architectural design are only comparable with the design used under the government budget and USAID. The final costs show that a junior secondary school costs FCFA1054 million for USAID project, FCFA98 million for the Government investment budget and for the EFA FTI project, incurring savings of FCFA 7 million or approximately $14,000. Social rates of return and externalities. The Project contributed to the government agenda of improving quality and participation in schooling that generated important externalities. An analysis of the rate of return was done using the 2011 Household Survey. The social return of primary education is 4.9 percent while the private return is even higher with a rate of 15.9 percent. The private return of junior secondary is higher at 13 percent. Similarly, social returns in junior secondary schools are 11 percent, higher than primary education. Analysis of the 2011 household survey shows a positive impact of primary and secondary education on health outcomes. The infant mortality in 2011 was 97/1,000 for children with a mother without primary school, 63/1,000 when the mother has primary school, and 36/1000 when the mother has some secondary school. Similar outcomes are evident for malnutrition or knowledge of HIV-AIDS.
4 The USAID-financed construction program is managed by the same government entity as for the IDA project. The difference is the inclusion by USAID of community mobilization funds in the school construction program.
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Annex 4. Bank Lending and Implementation Support/Supervision Processes
Annex 6. Stakeholder Workshop Report and Results Not Applicable
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Annex 7. Summary of Borrower's ICR and/or Comments on Draft ICR The QEFA2 is the second phase of a sector operation that provided technical and financial support to the ten-year education sector program of Senegal (Programme décennal de l’éducation et de la formation, PDEF, 1998-2009). The first phase was successfully implemented and the triggers to pass to the second phase were all met. The QEFA2 contributed to the achievement of several objectives. First, to achieve the Millenium Development Goals related to gender and education. Second, it supported the Government strategy to reduce poverty by developing human resources and emphasizing education. Third, the Project was in line with the country assistance strategy’s objective of reinforcing the national capacity and to improve access to social services. The Project started in 2006 and it was completed in 2012. The beginning of implementation coincided with the adoption by the MEN of a program approach and donor harmonization to coordinate their activities. The Project supported the Government to face the main challenges in the education sector in a sustainable manner. MAIN PROJECT ACHIEVEMENTS ACCES The Project contributed to the achievement of the objectives of the PDEF. It contributed to the construction of 28 secondary schools, as foreseen. This contributed to the enlargement of the secondary schools network in the country, which increased from 853 schools in 2006 to 1542 by Project closing. The Government partially fulfilled its commitment of building classrooms per year, reaching 1,081 classrooms annually (versus a target of 1,500). The construction of secondary schools contributed to improve the transition rate between primary and secondary education (from 60,1% to 88,4%, between 2006 – 2011). Access indicators overall improved during the life of the Project: (i) The gross intake rate in first grade of primary improved markedly; (ii) Gross enrollment rate improved significantly (from 79% at the beginning of implementation to 94.1% in 2012) though below the project’s target. This result should not be considered underperformance, since it is the result of the reduction of the repetition rates in primary; (iii) the gender parity has improved both in primary and secondary levels.
The synergies generated by the implementation of several strategies contributed to the achievement of these results. Namely: (i) the implementation of a policy to support transition between primary and secondary education; (ii) the development and the implementation of performance contracts between the IAs, IDENs and the DEE; (iii) the implementation of strategies to improve quality and internal efficacy, through the summer remedial courses during the vacation break and the action plans prepared by the IDENs. All of these strategies were supported by the Project. There were significant achievements in the non-formal education sector with the support of the alphabetization programs which allowed 53,250 beneficiaries to receive alphabetization courses. 90% of them were women (versus a target of 70%) and most of them belonged to associations or economic activity groups. The beneficiaries were highly satisfied with the courses because they perceived direct benefits related to the management of their income generating activities.
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The activities carried out to upgrade schools through the construction of 248 sanitary blocks and 125 water points contributed to improve the school environment and to improve the enrollment of girls. QUALITY The Project supported the acquisition and distribution of 1,812,008 teaching manuals and the acquisition and distribution of 202,000 Mathematics manuals for secondary level. Around 779 schools received resources to create reading corners in 4 classes (CE1, CE2, CM1 and CM2) in each school (a total of 3116 reading corners). The project financed 1,473 school projects in primary schools (versus a target of 1,000) and 86 in secondary schools. These projects contributed to the improvement of the quality of teaching and learning in the schools benefitted. The schools projects contributed to make the schools more dynamic, to provide pedagogical and non-pedagogical inputs, to bring the communities closer to the schools and to improve the management of resources at local level to benefit teaching and learning. An evaluation was carried out in 2009 provided evidence of the positive effects of the school projects on student learning. The implementation of quality action plans and regional training programs (PAF and PAQ) by the IAs and the IDENs: (i) fostered the de-concentration efforts; (ii) guaranteed in-service training for 28160 teachers, principals and key personnel of the education system, improving their competencies; (iii) supported local initiatives to resolve local problems; and (iv) maintained working relations among key actors in the system. The PAFs and PAQs contributed to reinforce transferring financial resources to the regional and district levels, allowing them to receive resources to conceive, develop and implement activities and strategies to improve the quality of education. Between 2008 and 2011, a total of 2.2 billion CFA were transferred to the de-concentrated levels to finance the PAFs and PAQs activities. In an effort to improve the quality of learning, the project supported remedial courses over the summer for students with academic difficulties: in 2010, 11,802 students with academic difficulties and 12,144 in 2011 in grades CI and CM1 received courses in reading and Mathematics in the IDENs of Parcelles Assainies, Pikine, Tivaouane, Mbour, Kébémer, Louga, Fatick, Kaolack, Bambey et Diourbel. Learning assessments were done at the beginning and end of the program. In 2010, the success rate in CI went from 40% to 66% and from 51% to 75% respectively in French and Mathematics. In 2011, similar positive results were observed. All of these Project’s activities have given positive results, such as the reduction in the repetition rate in primary which went from 13.9% at the beginning of the Project to 3,5% in 2012, surpassing the target of 6,8%. MANAGEMENT The Project provided support for: (i) institutional reforms at the MEN; (ii) improving human resource management; (iii) implementing budgetary reforms in the framework of the medium term budget framework; (iv) improving the collection and analysis of data and communication. As
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results of the Project’s support: all of the Directorates at central level, IAs and IDENs had signed performance contract and the successful statistical annual campaigns were carried out. Reorganization of the Ministry of Education The project provided support to establish a working group with international support to reorganize the IAs and the IDENs. As a result, new legal texts were produced reorganizing these structures in order to make them more modern and aligned with their missions and to prepare a program to reinforce their structures. Financial Management The QEFA2 contributed to the strengthening of financial management through the de-concentration of financial resources to the IAs. The resources from different donors were directly allocated to the IAs and they were managed by Financial Officers hired and trained under the Project. The Project financed several financial software applications for accounting and budget management, personnel management, school management and team work, among others. The QEFA2 financed the hardware IT equipment of the Ministry of Education at central and de-concentrated levels (IAs and IDENs). More than 800 staff at the central level (including representatives of unions that intervene in the teacher’s rotations and administrative staff of the de-concentrated levels received training.
Difficulties faced to implement the Project School construction and upgrades experienced delays due to the lack of enough
companies to carry out these activities and delays during the procurement process; Regarding the PAF and PAQ , it is worth pointing out that:
Budgetary constraints limit the continuation of the training, the positive implementation of some of the planned activities together with the lack of implementation of other planned activities due to a shortage of time. The main consequence of on implementing according to the planning meant that some key aspect of the training lagged behind schedule;
Logistical constraints, such as limited transportation and carburant, are the main obstacle to a close follow up of the activities ;
Delayed technical and financial data collection and processing after the implementation of activities;
Difficulties in the implementation of the procurement plan due to the lack of technical specifications on time, insufficient trained staff, amount of work and conflict of interest.
Factors with an impact on Project implementation Resistance to the traditional education services: the implementation of the policy of
universal education faces resistance among certain groups in areas of the country where the religious schools are dominant. In some areas, the construction of traditional schools is very recent. Thus, the demand for education must be better dealt with, with the following actions: (i) reinforce the creation of French-Arab schools, and (ii)
55
communication and sensitization campaigns to improve and foster access to education services.
The location of certain schools in certain zones means a delay in construction and the reality that these will remain remote and distant from more populated areas.
The de-concentration of financial management and the transfer of funds to the regional, local and school levels, allowed better grass root and community involvement and the establishment of a transparent governance and consensus building..
The involvement of the grass root communities in those areas where the schools benefited from the school projects (projets d’établissement) ;
The Government’s compliance with the commitments agreed with IDA.
Lessons learned The adequate performance (functioning) of the monitoring and evaluation mechanisms
and the use of those results had a strong influence of the performance of the Project. Re-invigoration of grassroots and community organizations (des Organisations de
Comité de Base) especially women organizations, through the improvement of activities that contributed to increase their revenues;
Improvement of the pedagogical practices through a systematic implementation of the teacher training programs;
Improvement of the learning achievements to meet a minimum standard level for the core disciplines of the curriculum ;
Limit to a maximum of four the number of secondary schools (collèges) to be built by each company given their capacity in an effort to avoid delays in construction;
The need to identify activities and foster ownership in a timely manner; The need to elaborate on time a procurement plan; The need to continuously reinforce the capacity of key actors, through continuous
training and knowledge update (mise à jour des connaissances); The importance of archiving documents in matters related to procurement activities; The follow up of payments, disbursements and delivery of goods and services.
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Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders
Not applicable
57
Annex 9. List of Supporting Documents
• Project Appraisal Document • Aide memoirs (2006-2012) • Back to Office Reports 2006-2012 • Financial Monitoring Reports s • Implementation Completion Report for the Quality Education for All Project Phase I
(Report No 34522) • Evaluation du Programme Décennal e l’Education et de la Formation 2000-2011
(Octobre 2012) • Rapport National sur la Situation de l’Education 2008 (Décembre 2008) • Evaluation of the Impact of School Grants on Educational Achievement. October
2012 • Abandons Scolaires au Sénégal: Quelques Evidences a partir des données d’enquêtes.
October 2010
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Annex 10. Rating of Project Outcome The Project was restructured in 2010 to better achieve the PDOs. At the time of restructuring, the rating for development outcomes was moderately satisfactory. The restructuring left the PDO unchanged and modified key performance indicators. In particular, it lowered the target for the Primary Completion Rate indicator (from 78% at the end of 2009 to 65% at the end of 2011). Though there had been progress in increasing the primary completion rate since the beginning of implementation, it was perceived by the Government, IDA and other donors that the target established in the PAD was not attainable. The main reasons were the high dropout rates in grades 1st and 5th.
Several indicators were dropped because they lacked baselines or specific targets, were not being monitored or were not as relevant in measuring project outcomes. Against
Original PDOs
Against Revised PDOs
Overall
Rating Moderately Satisfactory
Satisfactory
Rating value 4 5 Weight 48.7% 51.3% 100% Weight value 1.92 2.53 4.45 Final rating Moderately
Satisfactory Bank and Borrower Performance
A. Bank performance 1. Ensuring Quality at Entry: Satisfactory
Quality At Entry refers to the extent to which the Bank identified, facilitated preparation of, and appraised the operation such that it was most likely to achieve planned development outcomes and was consistent the Bank’s fiduciary role. The overall quality at entry was Satisfactory since eight of the criteria were highly satisfactory, one moderately satisfactory, and one satisfactory. , The project was relevant based on the following: (i) the relevance and approach was high; (ii) the Project preparation was based on solid knowledge background technical, financial, and economic analysis; (iii) poverty, gender and social aspects were well taken into account; adequate safeguards policies were triggered and considered into the project; (iv) financial management and procurement were appropriate; (v) the government policy and institutional aspects were integrated into the project; (vi) the risks were well assessed and (vii) the Bank provided adequate resources to prepare the project. Two criteria
59
had minor shortcomings that were overcome after restructuring: (i) Despite a good M&E system, there were numerous outcome indicators and (ii) the Bank overestimated municipalities capacities to implement the construction of auxiliaries’ facilities in some schools. Rating criteria Criteria
Rating MU or less
MS
S HS
Strategic Relevance and Approach X Technical, financial, and economic aspects X Poverty, gender et social aspects X Environmental aspects X Fiduciary aspects X Policy and institutional aspects X Implementation arrangement X Monitoring and evaluation X Risk assessment X Bank inputs and Processes X
2. At Supervision: Satisfactory Quality of supervision refers to the extent to which the Bank proactively identified and resolved threats to the achievement of relevant development outcomes and the Bank’s fiduciary role.
The World Bank performance in supervision was satisfactory According to criteria below, there were not shortcoming and the WB Bank proactively identified and resolved all issues that could prevent the achievement of relevant development outcomes including the minor or moderate shortcomings related to the Quality at Entry.
Rating criteria
Criteria
Rating MU or less
MS
S HS
Focus on Development Impact x Supervision of fiduciaries and safeguards aspects x Adequacy of supervision inputs and processes x Candor and Quality of performance reporting x Role in ensuring adequate transition arrangements x
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3. Overall Bank performance:
The overall Bank performance is satisfactory. The World Bank performance at entry and supervision was satisfactory.
B. Borrower performance
Borrower performance refers to the extent to which the borrower (including the Government and implementing agency) ensured quality of preparation and implementation, and complied with covenants and agreements, towards the achievement of development outcomes.
1. Government performance
The Government performance is satisfactory rated based on the following criteria:
Rating criteria
Criteria
Rating MU or less
MS
S HS
Government ownership and commitment to achieving development objectives
X
Enabling environment including supportive macro, sectoral, and institutional policies
X
Adequacy of beneficiary/stakeholders consultations and involvement X Readiness for implementation, implementation arrangements and capacity, and appointment of key staff
x
Timely resolution of implementation issues X Fiduciary (financial management, governance, provision of counterpart funding, procurement, reimbursements, compliance with covenants)
X
Adequacy of M&E arrangements, including the utilization of M&E data in decision-making and resource allocation)
x
Relationships and coordination with donors/partners/stakeholders. X Adequacy of transition arrangements for regular operation of supported activities after loan credit.
x
1.1.Implementing agency performance
The performance of the implementing agency is satisfactory rated on the following criteria:
Rating criteria;
Criteria
Rating MU or less
MS
S HS
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Agency commitment to achieving development objectives X Adequacy of beneficiary/stakeholder consultations and involvement X Readiness for implementation, implementation arrangements and appointment of key staff
x
Timely resolution of implementation issues X Fiduciary (financial management, governance, procurement, reimbursements, compliance with covenants)
X
Adequacy of M&E arrangements, including the utilization of M&E data in decision-making and resource allocation)
x
Relationships and coordination with donors/partners/stakeholders. X Adequacy of transition arrangements for regular operation of supported activities after loan credit.
x
2. Overall Borrower performance: Satisfactory
Darou MoustiDarou Mousti
MbakéMbaké
DaraaDaraa
KokiKoki
MpalMpal
RufisqueRufisque
TivaouaneTivaouane
MékhéMékhé
KayarKayar
Fâs BoyeFâs Boye
Tioukougne PeulTioukougne Peul
LéonaLéonaNdiayeNdiaye
LagbarLagbar
Haïré LaoHaïré Lao
ThilogneThilogne
MamâriMamâriVélingaraVélingara
Darou KhoudosDarou Khoudos
NdanganeNdangane
SakoneSakone
MbourMbour
KébémèrKébémèr
Nioro du RipNioro du Rip
DiembérengDiembéreng
Keur MadiabelKeur Madiabel
KarangKarang
GuinguinéoGuinguinéo
GossasGossas
NgandaNgandaKoungheulKoungheul KoussanarKoussanar
MakaMaka
NiahNiahèneène
LinguèreLinguère
PayarPayar
Toubéré BafalToubéré Bafal
DialakotoDialakoto
MakoMako
RossoRossoDaganaDagana
NdiayèneNdiayèneRichard-TollRichard-Toll
PodorPodor
KaediKaedi
BakelBakel
NayéNayé
SarayaSaraya
VélingaraVélingara
MeedinaMeedinaGounasGounas
BounkilingBounkiling
BignonaBignonaTanafTanaf
GoudompGoudomp
DianaDianaMalariMalari
DiouloulouDiouloulou
OussouyeOussouye
DiourbelDiourbel
FatickFatick
ThièsThiès
LougaLouga
KaolackKaolack
MatamMatam
TambacoundaTambacounda
KoldaKolda
ZiguinchorZiguinchor
Saint-LouisSaint-Louis
KaffrineKaffrine
KédougouKédougouSédhiouSédhiou
DAKARDAKAR
T A M B A C O U N DT A M B A C O U N D A
K É D O U G O UK É D O U G O U
L O U G AL O U G A
KAOLACKKAOLACK
K A F F R I N EK A F F R I N E
K O L D AK O L D ASÉDHIOUSÉDHIOU
ZIGUINCHORZIGUINCHOR
CAP-CAP-VEVERT
T H I È ST H I È S
D I O U R B E LD I O U R B E L
F A T I CF A T I C K
S A I NS A I N T -T -L O U I SL O U I S
M ATA MM ATA M
THETHEGAMBIAGAMBIA
M A U R I T A N I AM A U R I T A N I A
M A L IM A L I
THETHEGAMBIAGAMBIA
G U I N E A B I S S A UG U I N E A B I S S A UG U I N E AG U I N E A
To To NouakchottNouakchott
To To MboutMbout
To To BarraBarra
To To BanjulBanjul
To To KayesKayes
To To BalakeBalake
To To KoundaraKoundara
To To BafataBafata
To To FarimFarim
To To IngoreIngore
Darou Mousti
Mbaké
Daraa
Koki
Mpal
Rufisque
Tivaouane
Mékhé
Kayar
Fâs Boye
Tioukougne Peul
LéonaNdiaye
Lagbar
Haïré Lao
Thilogne
MamâriVélingara
Darou Khoudos
Ndangane
Sakone
Mbour
Kébémèr
Nioro du Rip
Diembéreng
Keur Madiabel
Karang
Guinguinéo
Gossas
NgandaKoungheul Koussanar
Maka
Niahène
Linguère
Payar
Toubéré Bafal
Dialakoto
Mako
RossoDagana
NdiayèneRichard-Toll
Podor
Kaedi
Bakel
Nayé
Saraya
Vélingara
MeedinaGounas
Bounkiling
BignonaTanaf
Goudomp
DianaMalari
Diouloulou
Oussouye
Diourbel
Fatick
Thiès
Louga
Kaolack
Matam
Tambacounda
Kolda
Ziguinchor
Saint-Louis
Kaffrine
KédougouSédhiou
DAKAR
T A M B A C O U N D A
K É D O U G O U
L O U G A
KAOLACK
K A F F R I N E
K O L D ASÉDHIOU
ZIGUINCHOR
CAP-VERT
T H I È S
D I O U R B E L
F A T I C K
S A I N T -L O U I S
M ATA M
M A U R I T A N I A
M A L I
THEGAMBIA
G U I N E A - B I S S A UG U I N E A
Lac deGuier
Vallée du Ferlo
Vallée du Ferlo Vallée du Mboun
Saloum
Salou
m
Casamance
Gambia
Kayanga
Koulountou
Sandougou
Gambie
Sénégal
Doue
Sénégal
Falémé
ATLANTICOCEAN
To Nouakchott
To Mbout
To Barra
To Banjul
To Kayes
To Balake
To Koundara
To Bafata
To Farim
To Ingore
Casamance
La Ferdo
Mal inke
419 m
18°W 16°W 14°W
18°W 16°W 14°W 12°W
12°N
14°N
16°N 16°N
12°N
14°N
SENEGAL
This map was produced by the Map Design Unit of The World Bank. The boundaries, colors, denominations and any other informationshown on this map do not imply, on the part of The World BankGroup, any judgment on the legal status of any territory, or anyendorsement or acceptance of such boundaries.
