Document of The World Bank FOR OFFICIAL USE ONLY Report No. 6774 PROJECT COMPLETION REPORr MADAGASCAR SECOND EDUCATION PROJECT (CREDIT 663-MAG) May 22, 1987 Education and Manpower Development Division Eastern and Southern Africa Regional Office This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorizat!on. 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
FOR OFFICIAL USE ONLY
Report No. 6774
PROJECT COMPLETION REPORr
MADAGASCAR
SECOND EDUCATION PROJECT(CREDIT 663-MAG)
May 22, 1987
Education and Manpower Development DivisionEastern and Southern Africa Regional Office
This document has a restricted distribution and may be used by recipients only in the performance oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorizat!on.
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FOR OMCAL US ONLYTHE WORLD SANK
Washmgton. D.C. 20433U.S.A.
OK1 of ODvectohCt.waiopftatm lVaWIttA
May 22, 1987
MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT
SUBJECT: Project Completion Report: Madagascar Second EducationProJect (Credit 663-MAG)
Attached, for information, is a copy of a report entitled"Project Completion Report: Madagascar - Second Education Project(Credit 663-MAG)" prepared by UNESCO and reviewed by the Eastern andSouthern Africa Regional Office. Under the modified system for projectperformance auditing further evaluation of this project by the OperationsEvaluation Department has not been made.
Attachment
This document hss a matricted dbidbutko NW may be uS by moipblens only in fth perfonnanceof their offcial duties. Its contents may nMothewie be divelxed wut World Bank authodattbn.
FOR OMCIL US ONLY
LI8T OF AEEREVIATIONS
ASN Persons called up for national service
BEPC Certificate of first cycle studies
BEPOTEP Curricular Studies Office and Curriculum Development
Technical Branch
BMET Malagasy Technical Studies Office
CAPR Provincial AcadeLic Centre
CIRESEB Secondary and Basic Education Area (formerly COSEB)
CNAPMAD National Teaching Materials Production Centre
CNCDC National Cyclone Damage Coordination Committee
CUR Regional University Centre
DPESEB Provincial Directorate of Secondary and Basic Education
FNDE National Economic Development Fund
JIRAMA Name of the national water and electricity company
MINESEB Ministry of Secondary and Basic Education
MTP Ministry of Public Works
ORT Organization for Rehabilitation through Training
PAPMAD Malagasy stationers
PASCOMA School insurance (Malagasy school accident protection)
SAFF Primary school (level I)
SEIMAD Name of a Malagasy consultant firm
SFF Initials of the Malagasy name for secondary schools (level
II)
SLP Educational Logistics Service (formerly BEPOTEP)
SPE Provincial Education Service
VRD Site development
VSN National Service Volunteers
Thib document ha a sited distribution and may be used by rcipk is only in the perfoman|ceof thdir off dutie Its contents may not otherwie be discosed without Wofid Bank authoration.
PROJECT COMPLETION REPORT
MADAGASCAR
SECOND EDUCATION PROJECT(CREDIT 663-MAG)
TABLE OF CONTENTS Page
Preface iBasic Data Sheet iiEvaluation Summary Iv
CHAPTR I: PROJECT ORIGINS ADD CO 1TN
A. Project Origins 1VI B. Project Strategy and Objectives 1
C. Technical Assistance 9Expert Services 9Training Fello.-ships 10
D. Implementation of Credit Conditions 10E. World Bank Supervision 11
CHAPTER IN: COSTS AND FINANCING 12
A. Appraisal Report Estimates 12B. Actual Costs 12C. Sources of Financing 13D. Unit Costs 14E. Technical Assistance Costs 14F. Implementation and Withdravals Calendar 14G. Cyclone Damage and Credit Remainders 15H. Operating Costs 15
CHAPTER V: PROJECT RESULTS 16
A. General Considerations 16B. Provincial Academic Centres (CAPRs) 16
Space Utilization 16Means of Transport 16Administrative Responsibil,ties 17Training Activities 17Staff 17
Table of Contents (cont.)
Page
r. National Centre for Educational Materials 18Production (CNAPMAD) 18
Space Utilization 18CNAPMAD Activities 18Staff 19Sale of Products 19School Textbook Production 19
E. Educationel Planning and Statistics 20F. Educational Evaluation 21G. Project Admnistration and Pre-Investment Studies 21H. Cyclone Damage 21
CHAPTEP VI: CONCLUSIONS AND 22
A. Conclusions 22Provincial Academic Centres 22CNAPMAD 22School Textbook Production 22Educational Planning and Evaluation 23Project Administration 23Technical Assistance 23
B. Recommendations to the Government 23C. Recommendations to the Bank 24
LIST OF ANNE
1. Persons Met
2. Implementation Calendar
3. Implementation of Credit Agreement Covenants
4. Comparative Areas of CAPBs and CNAPMAD
5. Construction Period
6. Technical Assistance and Training Fellowships
7. Project Expenditures by Category
8. Project Expenditure by Component
9. Disbursements Schedule (Table)
10. Disbursements Schedule (Diagram)
11. Comparative Unit Costs
12. Re-allocation of Funds
13. MINESEB Organization Chart
14. DPESEB CAPR Operating Structure
15. CAPR Training Acvitities
16. CNAPMAD Organization Chart
17. CNAPMAD Operating Structure
18. Project Unit Staff
19. Project Unit Staff Changes (ex. Table 2.1)
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PROJICT COMPLETION RRPORT
SBCOND EDUCATION PROJECT(CREDIT 663-0AG)
PRtEACE
This is a Project Completion Report (PCR) on the Second* Education Project in Madagascar, for which Credit 663-MAG was signed
Deaembe- 10, 1976, for US$14.0 million equivalent. The Credit wasclosed on December 31, 1984; US$2i7,000 rmained undisbursed and wascancelled on July 17, 1985.
The PCR ws prepared by a UNESCO mission for the Governmentof Madagascar under the tens of the Cooperative Agreement andreviewed by the Eastern and Southern Africa Regional Office. Themission visited Madagascar in May/June 1985, and the report presentsthe mission's comments, conclusions and recommendations.
In accordance with the revised procedures for projectperformance reporting, this PCR was read by the Operations EvaluationDepartment (ORD) but the project was not audited by ORD staff. Thedraft PCR was sent to the Borrower and its agencies for comments inMarch 1987. No coments have been received.
PROJECT COMPLETION REPORT
MUDAGASCAR
SECOND EDUCATION PROJECT(CREDIT 663-MAG)
BASIC DATA SHEET
rhd aacar - Second Education Project, Loan 663-NAG
Proposed ActualTotal project cost:In Malagasy francs 4 198 600 000 5 393 000 000In US dollars 19 260 000 18 010 000Credit (loan) amount 14 000 000 1/ 14 000 000Disbursed (amount) 14 000 000 1/ 13 723 000Cancelled - 277 000Credit (loan) agreement date - 10 Dec. 1976Effectiveness date - 15 Aug. 1977Date of completionof physical elements 31 Dec. 1980 September 1985Overrun 48 months 105 monthsClosing date 31 Dec. 1981 31 Dec. 1984End of disbursements 30 June 1982 17 July 1985
1/ Norway took a 50% grant participation (kroner equivalent toUs$7 million) of the external financing under an agreementsigned on 16 December 1977. As a result of exchange ratefluctuations, Norway's contribution Actually amounted to US$6.4million equivalent. Consequently, the principal due to IDAamounts to US$7.32 million equivalent. Any further referencesto the amount of the credit in this report include Norway'sparticipation.
Source: Project Unit.
Cumulative disbursements. (estimted and actuml)(US$ millions)
Key: A = architect; E = economist; G general educator; P printingspecialist.
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PROJECT COMPLETION REPORT
MADAGASCAR
SECOND EDUCATION PROJECT(CREDIT 663-MAG)
EVALUATION SUMMARY
Introduction
The project was identified by a Bank mission in 1974 and preparedby the Government with assistance from a Unesco/CP team in October 1975.Appraisal took place in December 1975 and Board approval, on November 4,1976. The Credit of US$14 million became effective on August 15, 1977 andwas closed on December 31, 1984, three years behind schedule (w .th anundisbursed balance of US$0.3 million being cancelled). Total projectcosts were Fmg. 5.4 billion (as compared to an appraisal estimate of Fmg.4.2 billion, i.e., a 28% overrun), but because of exchange rate fluctua-tions, only US$18.0 million equivalent vs. an appraisal estimate of US$19.3million. Since Norway made a grant contribution of US$6.4 million equiva-lent, after the credit became effective, the net debt incurred under theCredit amounted to US$7.3 million equivalent. Government's financialparticipation was US$4.3 million equivalent, or about 24% of total projectcost.
Objectives and Project Content
The project was to help develop Madagascar's basic educationsystem while improving its cost-efficiency. It comprised the followingcomponentss
(a) civil works, furniture and equipment for a national learningmaterials center (CNAPMAD) and for five regional academiccenters (CAPR);
(b) textbook development; and
(c) project administration and technical assistance (paras. 1.2-1.4).
Implementation Experience
The project experienced substantial delays--eight years instead offive from effectiveness to credit closing. The reasons for this were part-ly administrative/organizational such as insufficient coordination amongparticipating Government agencies, lack of full-time staff in the PIU, andpartly logistical--need for site changes/modifications, unavailability ofmaterials (paras. 2.3-2.4, 3.3-3.5, 3.15).
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Despite three closing date extensions two of the five regionalacademic centers were not ready at the end of the Implementation period,and textbook production had not yet started (paras. 3.13, 5.18). In aneffort to use credit funds fully and to cover emergency investment needs,IDA, in August 1984, agreed to a reallocation of funds to finance recon-struction of cyclone damages to some 20 schools in two provinces (para.1.5).
Some of the buildings provided under the project show a number ofdesign flws but the physical structures are generally of good quality(and, in the case of CRAPMAD, were thought to be even too elaborate)(paras. 3.10-3.12). However, most of the woodwork appears to be sufferingfr(m low quality and inadequate preparation of the materials used and, atthe time of completion was already in urgent need of repairlreplacement;the same remark applies to locally made furniture (paras. 3.16, 3.18).
A total of 118 vehicles were procured under the project. In spiteof some spare parts purchased in 1984 more than half of the vehicles usedin the provinces were beyond repair by the end of the Implementation period(para. 3.20). Equipment (mainly for the Regional Academic Centers) is onthe whole suitable and of good quality but was, at completion time, stillkept stored in the workshops because the main facilities did not provideadequate protection against theft, or because additional work (foundations,supply lines, drainage, etc.) had still to be done (para. 3.21).
Technical assistance to CNAPIAD, despite a rtduction by 302 (from216 to 150 man-months) achieved its objective of hslping that institutionin its initial phase; unfortunately, another TA component of 48 man-monthsto assist with educational planning and statistics work, had to be elimi-nated to compensate for cost overruns in the CNAPEAD TA program; itsresumption under a new project was envisaged (para. 3.25).
Operations Results
Operation of the project institutions has been severely affectedby deteriorating economic conditions: budgetary constraints forced theGovernment in 1982 to stop recruitment of national service (VSN) teacherswhich in turn meant that teacher training activities in the five CAPR areonly a fraction of the volume envisaged (varying from 4 to 421 of appraisalestimates, with even lower use factors for dormitories) (para. 5.6). Bythe same token, the envisaged educational support role of the ce& _ers isseverely curtailed by the aforementioned lack of serviceable vehicles.
In the case of CNAPHAD, the opposite has happeneds even duringinitial implementation, its area of responsibilities was expanded requir-ing, in response, an augmentation of CNAPHAD's physical facilities by over40%. Even this expansion, however, provad insufficient as the schools'needs for educational materials and, apparently, available funds for theirproduction proved larger than anticipated and led to the establishment ofan industry-scale production line of materials (pars. 6.1).
In addition, purchae of a printi prsess originally not fore-seen, creatid a production capacity for 750,000 textbooks a year which isnow coming on stream and which is expected to operate with full cost recov-ery by 1988 (paras. 3.8, 5.8-5.10, 5.15-5.18).
Sustainabilitv
Satisfactory operation of the project facilities depens above allon the availability of adequate budget resources. In the ca8e of CUAPMAD,the increased scope of operatios ha augmented recurrent budget require-ments considerably. However, the increasingly cmmerial mode of operationpromises an ease on financial constraints within the next fe years (paras.6.6-6.7).
For the CAPR the situation is more difficults not only havepersistent budget constraints put a stop to teacher recruitment, thus de-priving the centers of their main purpose--teacher traiing and upgrading--but in addition Insufficient quality control in their construction andfurnishing is now resulting In much high mintatenance and repair require-ments than would normally have been the case. An accelerated devolution ofadministrative and educational responsbilities to the centers way helpaccomplish a more efficient use of these facilities (pareas. 5.5-5.6).
Conclusions
The experience of this project underlines the Importance of
(i) a clear definition of responsibilities end functions ofgoverment agencies participating In project ipleentation,complemsnted by adequate full-tie staffing
(ii) proper synchronization of civil works and furnitur,loquipmentdeliverie to avoid protracted idling of major investmentitems;
(iii) appropriate arrangemnts for the operation, maintenance,repair and replacment of vehicles;
(iv) stringent quality controls for civil works, furniture andequipment; and
(v) careful adherence to the original project concept Includingsise, composition and tyep of use of project facilities; ifmajor modifications are inevitable, a detailed assesment ofthe Implications in term of effective desmad and incrementalresource requirements, should precede such a decision.
PROJACT COtPLETI9N MPOE.
MADAGCR
SECOND EDUCATION PROJECT(CESDIT 663-MAG)
CHAPE I
PRO.CT IGINS AID
A. Project Orlai
1.1 The composition of the Second Education Project was identifiedduring a Bank mission in 1974. The project envisaged was preparedby the Government with the help of a Unesco team in October 1975and an appraisal mission then visited Madagascar in December 1975.The draft appraisal report was discussed by government and bankofficials in June 1976 and the final version was issued in October1976. The total estimated cost was US$19.26 million of which US$14million was to be financed by the World Bank.
B. Project 8trategy and ObJectives
1.2 The project strategy was to help the Government minimlzerecurrent expenditures and at the same time maximize impact on basiceducation through:
(a) assistance to curricula to change the structure andcontent of basic education;
(b) introduction of improved learning methods andtechniques;
(c) use of National Service teachers to reduce averageclass sizes to a more reasonable level without undulyincreasing recurrent costs;
(d) in-service training of existing teachers;
(e) support to the inspectorate to help* it keep teachersabreast of new developments in content, learning methodsand techniques; and
(f) decentralization of educational administration toenable it to become more responsive to local needs.
1.3 The main thrust of the project would be on institution buildingfor the improvement of primary education, but secondary educationwould also be assisted. The project would: (i) provide theadministrative facilities required for the decentralization ofeducation, training facilities for about 20% of the NationalServicemen to be trained as teachers, and vehicles to enable primaryschool inspectors to visit the schools more regularly; (ii) establisha centre for the production of teaching mterials; and (iii) helpthe development of primary school textbooks.
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C. ProJect Con*Xt
1.4 The project comprised the following elements:
(a) construction of buildings and provision of furnitureand equipment for: (i) the five CAPRs (provincialacademic centres) which, in addition received vehiclesfor the CAPRs school inspectorate and; (ii) CNAPMAD(National Centre for the Production of EducationalTeaching Materials);
(b) preparation of school textbooks;
(c) provision of technical assistance for: (i) CNAPMADin its initial operation stages; (ii) the statisticalsection of the MOE and; (iii) project evaluation;
(d) project administration and pre-investment studies.
1.5 In August 1984 an unused part of the credit was applied tothe reconstruction of 20 educational institutions damaged or destroyedby the Kamisy cyclone in the region of Mahajunga and Antsiranana.
CHAPTER II
PROJECT ADMINISTRATION
2.1 The Project Unit was established in the Ministry of PublicWorks by a decree dated 13 October 1976 after approval by the WorldBank of its composition.
2.2 To start with the Project Unit had a director and twocoordinators (an architect and an educator), with support staffprovided jointly by the Ministries of Public Works and Education.In 1977 the post of coordination architect was abolished and in1979 it was replaced by one of an accountant. In 1980 additionalsupport staff for all financial matters was assigned in the Ministryof the Presidency, Finance and Planning.
2.3 Despite relative stability aind the assignement of ample supportstaff (see Annexes 18 and 19), implementation of the project sufferedgaps and difficulties through the lack of:
(a) definition of the responsible authorities and theresponsibilites and tasks of the Project Unit staff;
(b) coordination among the authorities concerned,particularly oetween the Ministry of Public Works(MTP) and the Ministry of Secondary and Basic Education(MINESEB);
(c) full-time staff in the Project Unit and availabilityof support staff;
(d) interest by the authorities during the first yearsof the project.
Further there was a lack of premises which led to the Project Unitsplitting in two: the directorate was installed in the MTP whilethe rest of the staff was located first in a school and then inCNAPMAD.
2.4 An international short list of 11 building firms was madein July 1977 but tendering had to be deferred until July and October1978 owing to a lengtby shortage of reproduction materials - ozalid,paper, ink and ammonia.
2.5 After substantial cost over-runs some bidding had to berepeated or negotiated so as to remain within the bounds of thefinancial limits foreseen. Further, work on three of the six projectinstitutions was divided into sections so as to allow for a bettercost control in a period of high inflation and of starting workdespite illegal occupation of part of the sites (see paragraph 3.2).
2.6 Site supervision was carried out jointly by MTP's decentralizedservices, by the offices responsible for studies (SEIMAD and BMET)and by the Project Unit.
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2.7 In 1984, cyclone damage repair work, financed from projectfunds, was given to the firms building the Mahajunga and AntsirananaCAPRs by emergency procedure approved by the Bank. All responsibilityfor studies and implementation was handed over to the National CycloneDamage Coordination Committee (MTP).
2.8 Implementation of the educational aspects of the projectwas to be carried out at three levels:
(a) national level - by the Directorate of School Planningand Orientation;
(b) the project unit - by the project coordinator;(c) provincial level - by the CAPR head.
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CHAPTER III
PROJECT IMPLEMENTATION
A. Project Duration
3.1 Implementation of the approved project took place over eightyears instead of the five foreseen at appraisal (see Annex 2). Topermit its accomplishment the closing date was put back first to31 December 1982, then to 30 June 1983, and lastly to 31 December1984 to allow for repairing cyclone damage, which was not initiallyforeseen in the project. The last disbursements of the credit weremade on 17 July 1985.
B. Physical Implementation
1. Sites
3.2 The sites chosen for the Antisiranana and Toliary CAPRswere, when work began, partly occupied by squatters. The sitingof buildings and the distribution of priority sections of the workwere changed to enable construction to begin before the sites werecompletely cleared.
3.3 The site chosen for the Fianarantsoa CAPR sloped sharplyand entailed substantial expenditures to terrace and drains.
3.4 In January 1978 the site chosen for CNAPMAD was curtailedby about a fifth of its area, which obliged the Studies Office tomodify its plans and revise siting in general.
3.5 The site for reconstruction of the Mahajunga Teacher TrainingSchool was apparently chosen because ot its purchase price. Accountwas not taken of its distance from the town (6 kms), of itsenvironment (a cemetery and a public rubbish dump are in the immediateneighbourhood), and of the cost of supplying electricity, for whichmore than a kilometer of cable will have to be run.
2. Architectural Services
3.6 The architectural studies for CNAPMAD and the FianarantsoaCAPR were entrusted to a private consultant firm (BMET) and thosefor the other four CAPRs to a semi-private consultant firm (SEIMAD).
3.7 The initial architectural programme (Annexe 4) for the CAPRshas remained practically unchanged. Only the two houses foreseenwere deleted for economic reasons, while the areas constructed haveremained more or less the same as at appraisal (+9.6%).
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3.8 The architectural programme for CNAPMAD (Annex 4) wasconsiderably modified on recommendations made by technical advisersto better meet production requirements of the different trades. Tnetotal constructed area was increased by about 42 per cent comparedwith appraisal entailing a substantial rise in construction costs.
3.9 The initial programme, drawn up in August 1984, of cyclonedamage repair took in 11 institutions in Antsiranana and Zen atMahajunga. In December 1984 three other school groups were addedto the Antsiranana list in an attempt to use as much as possibleof the funds available before closure on 31 December 1984.
3. Architectural Design
3.10 Provincial academic centres: the buildings for the fourCAPRs entrusted to SEIMAD were designed by different architectsand while some buildings are similar the general concept is differentfor each CAPR. The architects followed the advice of the ProjectUnit that local materials should be used, especially at Mahajunga,Toliary and Toamasina. Accommodation is distributed by activityareas in buildings of one to three storeys, linked by covered ways.The overall concept is generally good and functional but errorsof detail are numerous, particularly in the protection of openingsfrom rainfall (except at Fianarantsoa); in the placing and choiceof rainwater run-offs (Toliary' and Mahajunga); in the dangerousopening of windows on to circular areas (Toliary); in the many-windowed photographic laboratories and in the unsuitable choicesof locks and of electrical material. Further, the location of officesopening on to a central corridor does not permit sufficientventilation, while the placing of sun shades is often unsuitable.
3.11 CNAPMAD: the CNAPMAD buildings designed by BWET incollaboration with ORT technical staff are functional both in overallplan and in work spaces. It should however be noted that economiescould have been made in the selection of the materials and structureof workshops and storerooms, for which construction methods currentlyused in industry would have done.
3.12 Cyclone damage: technical studies of repairs to damagedschool buildings were made by MTP !n collaboration with a controloffice and on the basis of inspections made on the spot by thetechnicians sent from Public Works regional offices. Studies, cost-estimates and a start on work were made in record time to get thingsready as fast as possible and to replace the framing and roofingtorn away by the cyclone. It should, however, be noted that insome cases details were not well studied, particularly roofgutterings, drainpipes and roof ventilation.
4. Construction
3.13 Progress of work: the CNAPMAD Fianarantsoa and CAPR buildingsare fully complete. The second phase of the Antsirarana CAPR is40 per cent finished and the contracts for the Toliary CAPR are75 per cent completed (site development, weather proofing and 30
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per cent of the administration building remain to be finished). Onlythe kitchen in the Fiananantsoa CAPR is installed: the other fourare in the course of installation or construction. Cyclone damagerepair work financed by the project are complete or are being finishedexcept for the teacher training school (40 per cent finished) andthe Mahajunga CAPE, repairs to which are 70 per cent done.
3.14 After an international short-listing of firms, tenders wereinvited in July and August of 1978 and bidding and the designationof contractors were done in April and July 1979 - 15 and 8 monthslate (see paragraph 2.4). Substantial cost over-runs obliged theGovernment to delete directors' and trainers' housing and to reduceexternal works such as fences, pathways and landscaping. For theMahajunga and Fianarantsoa CAPEs the priority sections of theconstruction work were so determined as to enable the most urgentworks to begin within the financial limits.
3.15 Construction of the Toamasina CAPR was the only work notto fall behind schedule. With the other five the delay occuringbefore tenders were invited (see paragraph 2.4) was furtheraccentuated during construction and stretched to from 7 to 57 monthscompared with the dates foreseen at appraisal (Annex 2). Most ofthe construction projects encountered substantial difficult!es whichslowed work down considerably or even stopped it completely forseveral months (12 at Antsiranana). Such difficulties were dueto:
(a) substantial earthmoving work, which delayed the startof construction (Fianarantsoa);
(b) general shortages of imported materials - steel, cement,corrugated iron and fuel due to limitations imposedby the prioroity given to the regional universitycentres (CURB);
(c) shortages of local materials at the sites, due toinadequate skilled production capacity;
(d) social difficulties and a building workers strikewith occupation of the Toliary construction site;
(e) firms' financial difficulties (Toliary and Antsiranana).
3.16 The main building work is generally of good quality but mostof the woodwork at Toliary, Toamasina and Mahajunga is already insuch a state of deterioration as to need urgent replacement. Thetimber is of poor quality, badly seasoned and badly treated (frameshad wood preservatives applied with a brush when in place insteadof being impregnated before erecting) and so offer no resistanceto either termites or bad weather. At Mabajunga these defects arebeing repaired under the cyclone-damage budget. At Toliary thebuildings have not yet been taken over and the contraca-ors willhave to make good the parts affected. (For Toamasina no financingmeans has yet to be found). Further, the metal fittings and outerlocks of all the CAPEs are unsuitable or of poor quality and donot permit efficient protection against break-ins and the theftof breakable costly equipment (thefts of materials and equipment
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have already been reported at Toamasina and Mabajunga). Again theelectrial installations made at Mahajunga by JIRAMA are badly fitted,ugly and sometimes dangerous, (junctions and liners next to rainwaterhoppers, byepassing of fuseboards, etc.).
5. Furniture
3.17 Procurement of furniture financed by the project was madeby international tender in January 1980 for CNAPMAD and in March1981 for the CAPRs. Contractors were designated at the same time.Those for most of the wooden furniture were given to national firmsand the rest to foreign ones. The furniture imported was deliveredin May 1982 and that made or sold in the country in December 1980for CNAPMAD and between January and November 1983 for the CAPRs.There were thus delays of more than three years compared withappraisal forecasts, or of one year if account is taken of the datesspecified in the contracts.
3.18 On the whole the imported furniture is suitable and meetsthe needs. By contrast the wood used in local production, althoughsolid, was unseasoned so that the contractors had to fill jointsand cracks after delivery. Further the joinery is generally tooweak for the furniture's weight which often causes losses duringtransportation and handling.
6. Equilment
3.19 Equipment lists, specifications and quantities were preparedin 1977 by MINESEB in agreement with the project unit. After severalrevisions of the lists and of the composition of lots, tenders wereinvited in 1978 and 1979.
3.20 The vehicles financed by the project were procured in threephases: five vehicles were bought in May 1978 for the project unitand CNAPMAD, 95 vehicles for district educational advisers and 18others for the CAPRs were obtained by tender in 1979 and 1981. Arequest for a further 17 vehicles for the use of 15 new districtsand the distribution of CNAPMAD materials was refused by the Bankin 1983. Spare parts financed by the project were delivered in1984, which enabled a certain number of vehicles to be restoredto running order but more than half of those delivered to theprovinces remain beyond repair after five years of use in difficultconditions.
3.21 CAPR equipment was procured and delivered at the same timeas the furniture. On the whole the equipment is of good qualityand suits the CAPRs' initial objectives, but is at present storedin the workshops because:
(a) the other buildings cannot be securely locked (seeparagraph 3.16);
(b) the audio-visual rooms and workshops are not in use;(c) the kitchens are not yet installed (except at
Fianarantsoa).
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It is doubtful however, whether the advanced equipment selectedfor the kitchens can function for long, owing to reduction inoper;,ing budgets, difficulties in the supply of spare parts andlack of skilled staff. Further, the lack of coordination betweenthe supplier and the contractors will entail additional work forbases, piping, supply-lines and drainage which were not foreseenor do not meet the requirements of the equipment delivered. Furtherit should be pointed out that as the project did not provide forpurchases of books, the CAPR libraries have stayed empty exceptfor a few books and other publications inherited from the localadministration.
3.22 CNAPMAD's equipment was obtained in three phases. The firsttender invitations, sent out at the same time as the CAPR one, werebased on lists drawn up to match reduced targets for the productionof educational materials intended to serve as models for theproduction from the CAPR workshops. An assessment of needs basedon centralized industrial production led the authorities to sendout in April 1982 a new invitation to tender for complementaryequipment for the wood, glass and mechanical workshopb The firstorders were delivered in 1980 and 1981, with delays of some monthsbeyond the contract dates owing to difficulties of rail transportbetween Toamasina and Antanarivo. Equipment from the second lotof tenders was delivered between June and October 1983, three yearsafter the appraisal dates foreseen. Another batch of equipmentwas ordered in 1984 for the woodwork shop, the production capacityof which still falls short of needs.
3.23 In December 1979 the Bank agreed to conversion of thepublication material and of the 1,500 tonnes of paper foreseen atappraisal into equipment for the printing press which the Governmenthad decided to establish beside CNAPMAD. Invitations to tenderwere put out in May 1982 on the basis of lists prepared by aconsultant and deliveries were staggered between January and April1985, two years behind the contract dates, owing to late constructionof the workshops and delays in settling suppliers' accounts.
C. Technical Assistance (Annex 6)
1. Expert Services
3.24 At appraisal the project provided for 48 man/months of expertservices for educational planning. This assistance comprised aspecialist in items related to education and another for schoolinfrastructure. In addition the project was to finance 216 man/monthsof specialist services for starting up CNAPMAD.
3.25 All technical assistance for the project was entrusted inSeptember 1977 to the Union Mondiale ORT, for a total of 216mn/months. The programme laid down at appraisal was, by agreementwith the Bank, re-designed so that:
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(a) the content of assistance to CNAPMAD was modifiedthe better to meet the project's immediate needs -assistance in building design, in drawing up listsand specifications for equipment, and in trainingstaff for starting production;
(b) assistance for educational planning was dropped tocompensate cost over-run in the ORT contract. Thiscomponent will in part be taken up again by the UNDPproject MAG/79/002 with Unesco assistance.
3.26 The ORT assistamce was in the end reduced by 66 man/monthsto balance increases in technical assistance costs. Despite thisreduction and early difficulties - payment and construction delaysand lack of qualified counterparts - the technical assistance balanceis positive. It greatly contributed to CNAPMAD's establishmentand starting up, enabling it rapidly to attain its production targetsand even surpass them.
2. Training Fellowships
3.27 The project provided for the financing of 48 man/months offellowships for glass-blowers intended for CNAPMAD as well as offellowships and study tours for educational evaluation. With theBank's agreement it was decided that the training of glass blowersshould take place on the spot, with the assistance of an ORTspecialist. However, the project financed 55 man/months of fellowshipsfor the CNAPMAD directorate and for those responsible for itsmaintenance services, its study office and its technical directorate.Later, three other fellowships of three months each were awardedfor printing, photo-composition and reproduction at the printingpress, and a one-month course was financed for CNAPYAD's directorateof production and maintenance.
In addition the project financed:
(a) a study visit to Mauritius for project managementand the production of educational materials (six personsfrom 19/9/80 to 1/10/80);
(b) a study visit to Rumania on educational structuresand the production of educational materials (fourpersons from 2/12/80 to 7/12/80);
(c) a study visit to Algeria on the same subject (fourpersons): this visit was cancelled by the Algerianauthorities while the group was on its way;
(d) participation in a Unesco seminar in Burundi on schooltextbooks (one person fror. 6-12/9/83);
(e) a training seminar for statisticians and plannersorganized at Mantasoa with Unesco participation (18participants and 11 trainers from 28/6/79 to 14/7/79).
D. Iwleieutation of Credit Conditions (Annex 3)
3.28 The state of lmplementation of the credit covenant is shown inAnne 3. The results are uneven and certain covenants in the credit
- 11 -
agreement have been only partially fulfilloei, particularly as regardsthe project unit staff (Section 3.04) ant the project's impact(Ssction 3.08), upkeep and repair of project buildings (Section 4.02)and information about decentralization (Section 4.08).
E. Wbr3A Bank supervision
3.29 The project benefited from 15 supervision missions fromDecember 1976 to May 1983, an average of a mission every five months.The average duration was nine days and all but four missions includedan architect. Their distribution was, however, uneven with fourmissions in 1979 and only one in 1980, 1981 and 1982.
3.30 The main problems were identified during these missions andrecommendations were formulated and transmitted to the nationalauthorities. However, such recommendations often had only a limitedimpact on the progress of the project, the major problems thisencountered being linked with the country's economic andadministrative difficulties and with the great changes which tookplace in its administration, especially in the educational planningteam.
3.31 The Bank however, could have been able to contribute to theimprovement of project implementation by greater insistance on theproject unit's staff being permanent and on better definitions ofeach member's responsibilities.
3.32 From the supervision reports it emerges that the project'seducational component has been neglected to the benefit of thephysical and financial parts. More frequent participation byeducators and/or educational planners vould certainly have contributedto a better balance among the project's components.
3.33 There was no Bank supervision mission between May 1983 andDecember 1984, the project's closing date. Better supervision ofimplementation during the final months would certainly have speededup disbursements and so reduced the unused part of the credit.
- 12 -
CHAPTER IV
COSTS ADD FINANCING
A. Appraisal Report Estimates
4.1 At appraisal the total cost of the project was estimatedat USS19.26 million and the foreign exchange component at US$9.12million. The US$14 million credit was to cover 73 per cent of thetotal cost with all taxes included or 80 per cent of the cost withouttax. It was to enable all foreign exchange expenditure to be coveredand 58 per cent of local expenditure was tax free.
B. Actual Costs
4.2 The actual cost of the project was 6.5 per cent below theappraisal estimate in dollars and 28.4 per cent higher in MalagasyFrancs (Fmg).
Table 4.1
Category Appraisal AC!,"l Difference %
Total cost in Fmg 4 199 5 393 + 1 194 + 28.4(millions)
Total cost in US$ 19 259 18 010 - 1 249 - 6.5(thousands)
4.3 Actual project costs are summarized in Tables 4.2 and 4.3below. Detailed costs are shown in Annexes 6 and 7.
1/ Excluding disbursements made after the completion mission.
4.4 While the total cost of the project in US dollars has provedslightly reduced despite the three-year time lag, this is reallydue to the rise of the dollar' S exchange rate against the Malagasyfranc (see exchange zate, p.v.). The difference noted betweenestimated and actual expenditures by category are due to:
(a) additional equipment bought by CNAPMAD;(b) furniture expenditures being entered under equipment;(c) cancellation of expenditures for educational evaluation,
a project of which a small part was carried out withfinancing from Unicef (see paragraph 5.23);
(d) expenditures for cyclone damage which were not foreseenat appraisal (see paragraph 5.25).
C. Sources of Financing (Annexes 7 and 8)
4.5 Government participation in financing was slightly belowthat foreseen at appraisal (-2.4%). This was partly due to a changeIn the financing of imported furniture (100 per cent by the Bank),to an increase in equipment expenditures - the financing of whichby the credit rose from 85 to 89 percent - and also to thedistribution of financing for cyclone damage repairs, 90 per centof which were financed by the Bank.
9J
- 14 -
Table 4.4
ESTIMATED AND ACTUAL SOURCES OP FINANCING(US$ millions)
1/ Excluding disbursements made after the completion mission(US$209,000).
D. Unit Costs (Annex 10)
4.6 Construction unit costs rose from 23 to 40 per cent betweenappraisal (1976) and the signing of contracts for all the constructionsites (1978/79). The construction costs of the Fianarantsoa CAPSrose by 84 per cent (+90% in US$) owing to very high expenditureson site works and draining. For the others the cost rose by differentdegrees according to the rate of implementation and date constructionended.
E. Tecknical Assistance Costs
4.7 Technical assistance expenditures for training fellowshipsslightly exceeded appraisal forecasts (+7.2%) despite a substantialreduction In the duration of experts' contracts (-51.85%). Thisexcess was mainly due to the high cost of ORT assistance and tothe delay in CNAPNAD's implementation which had as a consequencethe increase of contingency rates for this category.
F. Iwleentation and Witbdrawals Calendar
4.8 The comparative calendar in Annex 2 shows up very substantialdelays in all components, especially for the construction of theToliary and Antairanana CAPRs. (52 months), the ones at Pianarantsoaand Mahajunga (15 and 12 months), CNAPMAD (12 months), equipmentdeliveries (36 months), fellowships (33 months), and the recruitmenttechnicians for CNAPMAD (2'1 months). Only with the constructionof the Toamsina CAPR and the delivery of vehicles was there littledelay compared with scheduling. All these delays had repercussions
- 15 -
on the credit withdrawals calendar (Annexes 9 and 10) in the formof a very slow start during the first three years, followed by agentle acceleration in 1980. Termination of construction in 1981resulted in a slowing down of withdrawals, with a slight pick-upin 1982/83 due to the purchase of equipment. The addition of cyclone-damage repairs brought only a few changes in disbursements in 1984and 1985, and these stayed below the pace of the preceding years.
G. Cyclone Dazi1ge and Credit R1eu,nders
4.9 The sum allocated under Credit 663-MAG for the repair ofcyclone damage was fixed by a credit amendment in August 1984 atUS$700,000 (Annex 12) so as to enable use to be made of sums notdrawn upon at that date (see paragraph 1.5). In actual factwithdrawals for this new component amounted to only US$627,832.Further, since the unfinished constructions at Antsiranana and Toliaryhave advanced only a little since the amendment on 30 June 1985,the date fixed for withdrawals to finish, there was still US$276,516unused.
H. Operatin Costs
4.10 The 1984 and 1985 annual budgets for DEPESEB/CAPR differgreatly, being between Fmg 3.5 million for Toliary and Fmg.12.2million for Fianarantsao (excluding salaries). These differencesare explained by the unequal distribution of the school populationand of staff. Further, part of the Toliary and Antsiranana buildingsare not yet finished and so are not in use. In any case, theirbudgets are inadequate and do not allow a normal development oftraining activites. Further, the lack of funds seriously hampersthe maintenance of buildings, equipment and transport, as well asthe running of kitchens, workshops and laboratories.
4.11 CNAPMAD's estimated budget for 1985 was prepared on the resultsof preceding years and of targets set by the Directorate and MINESEB.It is at present estimated at Fmg.204.5 million for CNAPM-AD itselfand Fmg.211 million for the printing press, with operating subventionsreaching 52.3 per cent and 28.6 per cent respectively. Thesesubsidies are regressive over five years and should allow financialautonony in 1988.
- 16 -
CHAPTER V
WPO U8tJLST
A. General Consideratilos
5.1 During the eight a - rs of project implementation theeducational sitvation in Madagascar has developed considerably,obliging the authorities at times to revise the general objectivesApon which identification of the project's components was based.This has especially been the case with the generalization ofeducation, which has developed very rapidly and without any realprogramming, entailing serious financial and miagement problems.To lessen such difficulties the Government decided to stop recruitingteachers, including national service volunteers (VSNs) who wereto be trained in the CAPRs. At the same time structural changestook place and the Ministry of Education was split In two, secondaryand basic education (MINES9B) being separated from higher education.Decentralization was then effected separately, CAPRs and CURs beingestablished in the provinces simultaneously.
B. Provlncial Aceadedc Centres (CPRS)
1. Space Utilization
5.2 Construction of the CAPRs aimed at supplying, within thedecentralized framework, administrative and educational premisesin each province. The five CAPRs were built and equipped (Antsirananaand Toliary are being finished) and all operate under the headingDPESEB/CAPR. The provincial educational services (SPE) staff whosepremises were old and cramped, were transferred to the new CAPRoffices. Most of the educationsl premises are however under-utilized,lacking teachers and funds. 6art of the classrooms are at presentoccupied by the administration and some are lent to teacher trainingschools and the CURs. Further, all the workshops serve as storeroomsfor mterials and some other premises are used to house watchmenand staff.
5.3 The table of the CAPRs training activities (Annex 14)summarizes training given by MINESEB in 1984/85. It confirms thatspace-utilization rates in the educational premises are very low:42 per cent at Toamsina, 35 per cent at Fianarantsoa, 23 per centat Mahajunga and 7 and 4 per cent for the other two CAPRs. Further,the number of persons housed in the CAPRs during their trainingmay be estimated at about a quarter of the total enrolment, so thatthe dormitories are practically unused.
2. Means of Transport
5.4 The project supplied a vehicle for each distrIct, 95 in all,so as to enable primary schools to be Inspected (paragraph 3.20).These vehicles, delivered from 1978 on, In fact enabled educationalcounsellors and primsry education inspectors to improve the quality
- 17 -
of their services even before the opening of the CAPRs. At present,half of these vehicles are out of service and their replacementhas not been provided for. The prrchase of two-wheeled transport,with aid from Unicef, has provided only a temporary solution andmost of this transport is out of service.
3. Administrative Responsibilities
5.5 The opening of the CAPRs should enable the provincialauthorities to take on wider responsibilities in implementingeducational policy and in educational administration. In the event,decentralization to the provinces of ministry responsibilities hasbeen limited: the DPESEBs have inherited the former responsibilitiesof the SPEs and to these have been added those of engaging staffand of distributing the budget within the global allocation of fundsto a province.
4. Training Activities (Annex 15)
5.6 Besides their administrative responsibilities, the CAPRswere to have the tasks of training serving teachers of all levelsand of training as teachers the BEPC holders who, after a threemonths course, were to be assigned to primary schools during thetwo years of their national service (VSN). The authorities foresawthe training from 1978 on, of about 9,000 VSNs a year, but recruitmentwas much more rapid than foreseen and the numbers reached more than35,500 VSNs in 1981. This lack of coherence in the planning ofprimary education forced the Government to revise its primary teacherrecruitment policy. To cope with the budgetary problems and thematerial and administrative constraints thus engendered, MINESEBdecided to stop recruitment in 1982. The CAPRs, which were openedduring 1981 to 1983 have not therefore participated in VSN trainingas was foreseen at appraisal, and training for primary education(level 1) is at present limited to a few in-service refresher coursesfor "animateurs" and educational counsellors. However, the CAPRstake part in the training of school leaving certificate holders("bacheliers") who are called up for national service (ASNs). Aftercourses of from 15 to 45 days these do one year of national servicein the SFFs (level II). The CAPRs also give in-service refreshercourses for secondary schc,l teachers of levels II and TII (Annex15). In addition, the CAPR buildings accomodate MINESEB's examinationcommissions, MES meetings, preparatory meetings for the new schoolyear, and discussion and seminars organized by other ministries.
5. Staff
5.7 DPESEB/CAPR staff, recruited wholly from teachers, are intendedmainly for administration. The number of CAPR teaching staff isvery limited and insufficient to achieve even very reduced educationaltraining objectives. There is thus under-utilization of premisesand educational equipment supplied by the project (paragraph 5.2and Table 5.1). A new DPESEB organization chart (Annex 14) providingfor the creation of four divisions, each comprising three or foursections for education and training is due to be put into forceat the beginning of the 1985/86 school year.
- 18 -
This should make it possible to increase training activitiesin so far as the posts described are in fact provided and the CAPRsare given the corresponding budget. Meanwhile, CUR secondary teachersare needed for refresher courses for secondary teachers of levelsII and III, and the educational counsellors provide staff for the"animateur" refresher courses (level I) and ASN training.
v. National Centre for Educational Materials Production (CNAP?AD)
1. Space Utilization
5.8 CNAPMAD was established to provide secondary schools withscience equipment and educational materials as well as to designmaterials and make prototypes for primary schools. At the startof project implementation, the premises were designed for largerscale production than was foreseen at appraisal (paragraph 3.8) andthe equipment supplied by the project corresponded rather tocentralized industrial production (paragraph 3.22) than to the makingof prototypes. Nevertheless, three years after their opening, thepremises are once more too small. Schools' needs for teachingmaterials and their financial means are more substantial than wasexpec+ed. Further the Centre has begun production of schoolfurniture, with resultant needs to extend the woodwork shop byadaptation of the storage building and to construct a new paintshop and a garage financed by FNDE.
2. CNAPMAD Activities
5.9 The Centre carries out research and studies on the productionof educational materials in conformity with the school curriculalaid down by MINESEB and in collaboration with a committee ofteachers. Technical and pedagogical sheets accompany the materials,which are tested on the ground before mass production. Exhibitionsare then held in the CAPRs on the use, handling and upkeep of thematerials. Mass production has been progressively started withthe arrival of national technicians and of machines, tools andaccompanying equipment resulting from the second invitation to tender(paragraph 3.22). After three years of operation, four sectionsare now mass producing materials.
Section Product Material used
1. Woodwork Individual training materials Local timberGroup training materialsPhysics materialsSchool furnitureEducational games
2. Machines and Items for manufacturing the Metal boughttools foregoing productsl/ locally or imported
3. Glasswork Laboratory materials Imported pyrexRepair work glass
1/ Part of the production is sub-contracted abroad.
- 19 -
5.10 Other sections are to be established progressively such as:
Galvanoplasty (to start in 1986)CeramicsAudiovisual technology (this cannot at present function owingto lack of equipment in the schools such as tape recordersand viewers and of teachers qualified in this field).
3. Staff
5.11 CNAPMAD is divided into five main services (Annex 16) andemploys 112 persons of whom 34 are civil servants. Four heads ofservices received training fellowships financed by the project(paragraph 3.27) and several other technicians were trained by theircounterparts from ORT technical assistance. French cooperationis at present financing technical assistance with an electricianand a glass technician to train national counterparts.
4. Sale of Products
5.12 Sales of materials produced by CNAPMAD are made through thefive provincial CAPRs, in which the products are kept on permanentdisplay. They are also made by PASCOMA (school insurance), a MINESEBbody, which groups the orders from schools and forwards them toCNAPMAD. Direct sales are made too at the centre and during toursby its staff.
5.13 The products are mostly sold to public and private educationalestablishments but customers also include administrative bodies,research organizations, hospitals, wholesalers, state societiesand individual users.
5.14 The sales of merchandise and finished products in 1985 isprovisionally estimated at Fmg.133,424,oo0 (US$202,7OO) anddistributed as follows:
Individual training materials 39 000 000Group training materials 24 000 000Educational games 10 000 000Glassware (for laboratories) 20 000 000Electrical materials 3 000 000Merchandise (chemical and other products) 20 000 000School furniture 20 424 000
D. School Textbook Production
5.15 The project foresaw the provision of 1,500 tonnes of paperfor printing school textbooks. Preparation of texts was to be doneby the Curricula Studies Office (BEPOTP) and the printing was tobe entrusted to the National Press. Further, the project foresawthe transfer to CNAPMAD of BEPOTEP's premises, which was old andunsuitable.
- 20 -
5.16 This programme uiderwent profound changes during projectimplementation. BEPOTEP now became SLP, installed itself in newpremises before the construction of CNAPMAD began and becameoperational with the aid of equipment financed by the UNDP projectMAG/79/002. Further, in view of the extent of the needs for schooltextbooks and of the delays caused through the National Press'sproduction capacity being swamped, MINESEB in 1979 decided toestablish a new press in CNAPMAD. To do this a credit amendmentenabled the project funds allocated to buying paper to be used toobtain printing equipment (paragraph 3.23).
5.17 The printing shops financed by FNDE were completed in August1984 and production began in 1985 with the printing of school end-of-year examination papers.
5.18 The purchase of pupils' textbooks is included in PASCOMA'sannual school insurance premium and teachers' books are normallybought by the school's Board of Management or by the teachersthemselves. This sales system should be kept when the books areprinted by CNAPMAD's press. Production capacity has been calculatedto be 150,000 copies a year of each of five titles. MINESEB foreseesa start being made during the school year 1985/86 with the printingof three textbooks prepared by SLP and of a manual for teachersof French with aid from French cooperation.
5.19 The staff of the press consist of 16 members, three of whomwere trained through fellovships financed by the project.
E. Educational Planning and Statistics
5.20 This component of the project was to have comprised technicalassistance by two experts to:
(a) proceed to a rationalization of the education systemwithin the context of decentialization;
(b) draw-up an invenJory of schools;
(c) introduce a system of data-processing.
5.21 The technical assistance in this component was in the endfinanced by UNDP's project MAG/79/002 and executed by Unesco forplanning and rationalizing the reform. Some periodical reportsmentioning the progress of decentralization were sent to the Bankbut there has not been any real in-depth study of this matter.However, a seminar for training national planners was organizedby MINESEB in July 1979 (paragraph 3.27) with Unesco participation.This seminar's impact was very slight since only one of the 18participants is still employed by the Planning Directorate.
5.22 Items (b) and (c) of this component were dropped when projectimplementation began.
- 21 -
F. Educational Evaluation
5.23 This component comprised the establishment of working groupsas part of the organization of MINESEB's Planning Directorate toexamine and evaluate: (a) regional services' administration andmanagement; (b) a new primary education curriculum; and (c) VSNtraining programmes.
5.24 Of these three items only (b) has been implemented. Anevaluation of the education system was made in March 1983, thanksto Unicef financing. A sector study was made in 19TT with Unescoassistance and was up-dated in 1978, but so far the manuscript hasnot been been printed. In addition, three study tours were financedby the project for staff from CNAPMAD and MINESEB (paragraph 3.27).
G. Project Administration and Pre-Investment Studies
5.25 Project implementation results have been described in ChapterII. Pre-investment studies for a third project are to be made afterthe second project's completion mission. A new sector study whichis envisaged will serve as a basis for identifying future projectsto be financed from external sources.
B. Cyclone Damage
5.26 The emergency programme for the repair of damage caused bythe cyclone was for the greater part implemented during the periodAugust 1984 to May 1985 and enabled numerous schools in the regionsaffected to be made good. Funds were provided by the project forthe repair of 20 of them and 18 have been so far made good (paragraphs3.12 and 3.13). A more exact initial estimate of repair costs wouldhowever have enabled not only a more extensive programme to befinanced from the credit but the complete amount anlocated to theseworkE' to be withdrawn before closure of the credit.
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CHAPTER VI
CONCLUSIONS AID IMMENDATIONS
A. Conclusions
6.1 The IDA credit was closed on 31 December 1984, threeyears behind schedule. The total cost of the project was slightlybelow appraisal estimates owing to the rise in the dollar exchangerate during the last years of implementation.
6.2 Of the six components foreseen at evaluation, two have attainedtheir objectives (CNAPMAD and technical assistance), and four havepartially attained them - the CAPRs, school textbooks, educationalplanning and education management. A seventh component, cyclonedamage repair, added to the project attained its objectives in part.
1. Provincial Academic Centres
6.2 The physical part of the CAPRs has not yet been entirelycompleted but the five centres are now operating. It may, however,be mentioned that the buildings are already in urgent need ofmaintenance and repair of defects. Further, most of the equipmenthas not been installed and remains unused.
6.4 The educational part of the CAPRs has been distanced fromthe original objectives since recruitment of VSNs was stopped.Further, the teacher training and refresher courses are stilloccasional and inadequate for a real improvement in the qualityof teaching in the provinces.
6.5 The administrative component of the CAPRs and DPESEB haspartly attained its objectives with the transfer to new buildingsof the educational services and their re-grouping. On the otherhand, delegation of administrative responsibilities to the provinciallevel is still far less extensive than f)reseen in thedecentralization objectives.
2. CNAPMAD
6.6 CNAPMAD's initial objectives were extended to the industrialproduction of educational materials, requiring larger premises andmore equipment than was foreseen at appraisal. After three yearsof operation the new production targets have already been surpassedand the directorate foresees financial autonony in 1988.
3. School Textbook Production
6.7 Despite substantial changes during project implementationthe textbook production unit is nov ready to function and shouldbe able to attain financial autonony within five years.
- 23 -
4. Educational Planning and Evaluation
6.8 Activities on these two components have stayed very limitedand have in part been transferred to UNDP financing for technicalassistance and to Unicef financing for the evaluation of basiceducation.
5. ProJect Administration
6.9 The efficiency of the Project Unit has been seriously hamperedby the lack of solid support from the authorities: a number ofofficials have been designated as members of the unit but few ofthem have been available or employed full-time.
6. Technical Assistance
6.10 The Technical Assistance and training fellowships financedby the project were all given to CNAPMAD and the printing press.Better distribution of assistance over the whole project would haveallowed a more balanced development of the other components -
especially educational planning and evaluation for which theappraisal report foresaw 48 man/months of specialists. These werenot implemented.
B. Recommendations to the Government
6.11 Future proJect management: to strengthen the project'sadministrative and management capacity the Government should:
(a) define exactly the authorities responsible with theirresponsibilities and areas of action;
(b) define the responsibilities and tasks of any futureproject unit, and those of each member of its staff;
(c) supply the material, financial and administrativemeans corresponding to the tasks to be accomplished;
(d) recruit the competent full-time staff needed to performthe project tasks;
(e) determine beforehand the administrative channels andprocedures to be used for project implementation;
(f) give the project unit the means needed to organizeand control implementation in the provinces.
6.12 CAPRs: the Government should provide the financial meansand human resources required for the CAPRs' sound functioning,especially in respect of: (a) finishing off construction and makinggood defects; (b) maintenance of buildings and equipment; (c)preparing and conducting real teacher training and reftesher courses;(d) using materials and equipment stocked in the workshops; (e)replacing vehicles out of service; (f) providing documentation andbooks needed for training courses and; (g) determining administrativedecentralization procedures.
6.13 Construction: the Government should not accept the selectionof mediocre materials to reduce the cost of tenders when these exceed
- 24 -
the funds assigned. It would be preferable, and in the end lesscostly, to look for savings by reducing the building programme and/orto seek more economical technical solutions.
6.14 Educational Planning: the development of educational reformrequires a speeding up of the establishment of central and provincialservices capable of colleding and analyzing statistical informationwith a view to defining educational objectives and programmes.
C. Recommendations to the Bank
6.15 Project Preparation: the Bank should insist with theGovernment that aU the points mentioned in paragraph 6.10 aboutthe pro'ect unit should be well-defined and clarified at thepreparation phase. Later any modifications in the administrativecontext should entail adjustment or re-definition of authority andresponsibilities.
6.16 Supervision Missions: the specialist composition, thefrequency and the size of future supervision missions should bemore adjusted to weaknesses and difficulties in the project. Further,more frequent visits to construction sites should make it possibleto avoid costly errors in the choice of materials and construction.
6.17 Building design: the Bank should exercise a better controlover plans and specifications, especially when it is a matter ofusing local materials, so as to avoid technical errors which couldlater entail costly repairs.
- 25 -Annex 1Page 1/2
?ER,ONS MET
Ninistere des Travaux publics
Lieutenant Colonel V. RAMAHATRA, Ministre des Travaux publics
Mr. R. RASAFA, Pr6sident Comit6 National de Coordination des D6gats
cycloniques, Architecte
M. RODRIGUEZ, Comite National de Coordination, D6g4ts cycloniques
*M. F. RANAIVASON, Comptable, Comite national de Coordination D4gits
cycloniques
Bureau du Projet
Nme H. ANDRIANOLIS, Directeur
M. S. RAZAFIMAHEFA, Coordonateur/Directeur CNAPMAP
Mme A. C. RABODOMALAIA, Relations ext6rieures
M. A. RAZAPINDRAZAKA, Comptable
M. N. RAMAMONJIJOA, AdJoint technique, Travaux publics.
Minist6re de l'46ducation et de base (MINEEB)
M. C. ZENY, Ministre de l'Education
M. ANSOUMARI, Directeur de la planification
Commission Nationale Unesco
M. H. RAHARIMANANTSOA, Secretaire g6neral
Province d'Antsiranana
M. J.P. TOTOBESOLA, Pr6sident du Comite executif de la Province
M. BOTSILAZA, Directeur DPESEB
M. R. BERTIN, Chef CAPR
M. J.M. TC4W)RAVO, Service statistiques DPESEB
M. ADAMA, Responsable mt6riel DPESEB
M. M. BESILY, Chef comptabilite
M. J. RAKOTODRIVONY, Adjoint technique SEIMAD
Mme S. RAVELONJANAHARY, Ing6nieur Travaux publics
M. N. RABENIMANANA, TP/SEIMAD, D6g&ts cycloniques
M. H. RAJAOMARISAOM4, TP/SEIMAD, D6g&ts cycloniques
- 26 -
Annex I
Page 2/2
Province de Planarantsoa
M. A.P. RAKOTONJANEHARY, Dlrecteur DPESEB
M. B. RAKOTONIRINA, Chef CAPR
Province de MahajungR.
M. P.B. INDRIANIHAJA, Directeur DPESEB
M. G. RAKOTONDRAMANANA, Chef Division financi6re DPESEB
4. P. RAKOTONDJAHARY, SEIMAD
M. L. RAZAFINTSALAMA, SEIMAD
M. P. NDEHA, Responsable formtion, DPESE8
M. M. MBELO, Responsable animateurs p6dagogiques
M. B. A. SOUDJAY, Adjoint charg6 du CPAR
Province de Toamasina
M. N. FENO, Directeur, DPESEB
Province de Toliary
M. B.C. BABANY, Directeur DPESEB
M. NELY SELPA, Adjoint Chef CAPR
Banpue mondiale. Antananarivo
M. P. BLAY
PNUD
14. 0. JANNONE, Representant Resident
M. le Representant r6sident adjoint
Mme RAKOTOmMAIAIA, charg6 de programme
Banque mondiale Washin4ton
Mr. S. SCEARCE, Directeur - Division Afrique de l'Est
M. A. COLLIOU, Economiste - Division Afrique de l'Est
Mme J. VIAL, Economiste - Division Afrique de l'Est
M. J. MAC CABE - Educateur - Division Afrique de I'Est
T*ecbicien souttleur de verre - 12 4 12 17.09.81 17.09.82 rplac6 par Coo*raatfrAais
Sp6cialiste en gestion des stocks - 12 4 12 09.11.80 08.11.81Tecbnicien projecteur bureau d'*tude - 21 4 21 10,WJI 14.04.82 a rewlac# l'ingnieur
conception
y!4L 226 152 - 61
?.S. Le rapport d'41alustion pr6voysit 48 w/b pour l planification et lea statistiques de l' duation tWU 8pciaistede la planification de 1'Gducation et un autre pour les installations 6ducatives). Cette assistance a t G=ul.au profit de l'assistance au CIAPNAP.
P.S. Le rapport d dvalation pr4voyalt un total de 48 a/b pour deux soutfleur doe verr. Cette fomt in a it6 *ectruemw place par lea spcialiastes de l'ORT.
canto clvtl CAPR Flaurantsoa 9 M2 7.38 s2 - IA88ur" bar oaum CAPI Thlamna 9 of 6,68 o2 - 26 5Interuat seu CAPR I*b&unga 9 K2
7.85 &2 - 13 3CAPP 7biary 9 a2 7.95 .2 - 12 %CAPP Antalranam 9 72 T.07 a2 - 21 IUc.aft Ge bum seas lapshvu.3!ft Gleu I& USO ls0 de otnt deg Wreb" &bU on V78 pow le CIIAD et on 197 pour le CAPPl.
Re-allo]ation of Funds
(US$ thousands)
Catfgorie PvRluntton Accord de RMvIston Amendeuents D*caass6 Dpenses Total
