Document of The World Bank Report No: ICR00001614 IMPLEMENTATION COMPLETION AND RESULTS REPORT (IBRD-72200) ON A LOAN IN THE AMOUNT OF EURO 104.4 MILLION (US$130.3 MILLION EQUIVALENT) TO THE REPUBLIC OF TUNISIA FOR AN EDUCATION PROJECT IN SUPPORT OF THE SECOND PHASE OF THE EDUCATION QUALITY IMPROVEMENT PROGRAM (EQIP II) March 28, 2011 Human Development Sector Middle East and North Africa Region CURRENCY EQUIVALENTS (Exchange Rate Effective October 1, 2003) Currency Unit = Tunisian Dinar (TND) TND 1.28 = US$1.00 US$0.78 = TND 1.00 FISCAL YEAR January 1 – December 31 ABBREVIATIONS AND ACRONYMS ANPE Agence nationale pour la protection de LCS Least-Cost Selection 1’environnement (National Environmental Protection Agency) APC Approche par compétence (Skills-Based MDG Millennium Development Goals Approach to Teaching and Learning) APL Adaptable Program Lending MET Ministry of Education and Training (Ministre de l’éducation et de la formation) BEPP Bureau des études, de la planification et MPWH Ministry of Public Works and Housing de la programmation (Office of (Ministre de l’équipement et de Research and Planning) l’habitat) CNIPFG Centre national d’innovation NBF Non-Bank Financed pédagogique et de recherche en éducation (Education Research Center) CQ Selection Based on Consultants’ NCB National Competitive Bidding Qualifications CREFOC Centre régional de formation continue OED Operations Evaluation Department (Regional In-Service Teacher Training Center) DBE Direction des bâtiments et de OM Operations Manual l’équipement (Buildings and Equipment Division) DGSC Direction générale des services PCN Project Concept Note communs (General Administration Department) DRE Direction régionale de l’éducation PIC Public Information Center (MET Regional Office) EQIP Education Quality Improvement Project PID Project Information Document IAPSO Inter-Agency Procurement Services PSR Project Supervision Report Office (United Nations) IBRD International Bank for Reconstruction QBS Quality-Based Selection and Development ICB International Competitive Bidding QCBS Quality- and Cost-Based Selection ii ICR Implementation Completion Report SBD Standard Bidding Documents ICT Information and communication SEC Secondary Education (Grades 10- 13) technologies [lycée] IFC International Finance Corporation SFB Selection under a Fixed Budget INBMI Institut national de bureautique et de SOE Statement o f Expenditures micro-informatique (National Institute for School Information Technology) INS Institut national de la statistique SSS Single Source Selection (National Statistics Institute) ISDS Integrated Safeguards Data Sheet TIMSS Third International Mathematics and Science Survey LIB Limited International Bidding TND Tunisian Dinar LBE Lower Basic Education (Grades 1-6) UBE Upper Basic Education (Grades 7-9) [école primaire] [collège] Vice President: Shamshad Akhtar Country Director: Simon Gray Sector Manager/Director: Mourad Ezzine/Steen Jorgensen Project Team Leader: Adriana Jaramillo ICR Main Author: Juan Manuel Moreno Olmedilla iii REPUBLIC OF TUNISIA Education Quality Improvement Program (EQIP) II 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 ................................................. 1 2. KEY FACTORS AFFECTING IMPLEMENTATION AND OUTCOMES .............................................. 11 3. ASSESSMENT OF OUTCOMES .................................................................................................................. 17 4. ASSESSMENT OF RISK TO DEVELOPMENT OUTCOME ................................................................... 21 5. ASSESSMENT OF BANK AND BORROWER PERFORMANCE ........................................................... 22 6. LESSONS LEARNED ..................................................................................................................................... 25 7. COMMENTS ON ISSUES RAISED BY BORROWER/IMPLEMENTING AGENCIES/PARTNERS . 27 ANNEX 1. PROJECT COSTS AND FINANCING .......................................................................................... 28 ANNEX 2. OUTPUTS BY COMPONENT ........................................................................................................ 30 ANNEX 3. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION PROCESSES ..... 35 ANNEX 4. SUMMARY OF BORROWER'S ICR AND/OR COMMENTS ON DRAFT ICR ..................... 37 ANNEX 5. LIST OF SUPPORTING DOCUMENTS ....................................................................................... 39 iv A. Basic Information Education Quality Country: Tunisia Project Name: Improvement Program (EQIP) Phase 2 Project ID: P082999 L/C/TF Number(s): IBRD-72200 ICR Date: 03/30/2011 ICR Type: Core ICR GOVERNMENT OF Lending Instrument: APL Borrower: TUNISIA Original Total USD 130.3M Disbursed Amount: USD 129.0M Commitment: Revised Amount: USD 130.3M Environmental Category: B Implementing Agencies: MINISTERE DE L'EDUCATION ET DE LA FORMATION Cofinanciers and Other External Partners: B. Key Dates Revised / Actual Process Date Process Original Date Date(s) Concept Review: 07/14/2003 Effectiveness: 05/24/2004 05/24/2004 Appraisal: 11/25/2003 Restructuring(s): 06/13/2008 Approval: 03/08/2004 Mid-term Review: 10/10/2006 Closing: 06/30/2008 09/30/2010 C. Ratings Summary C.1 Performance Rating by ICR Outcomes: Satisfactory Risk to Development Outcome: Moderate Bank Performance: Moderately Satisfactory Borrower Performance: Moderately Unsatisfactory C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings Moderately Quality at Entry: Moderately Satisfactory Government: Unsatisfactory Implementing Quality of Supervision: Satisfactory Moderately Satisfactory Agency/Agencies: Overall Bank Overall Borrower Moderately Moderately Satisfactory Performance: Performance: Unsatisfactory i C.3 Quality at Entry and Implementation Performance Indicators Implementation QAG Assessments Indicators Rating Performance (if any) Potential Problem Project Quality at Entry No None at any time (Yes/No): (QEA): Problem Project at any Quality of Yes None time (Yes/No): Supervision (QSA): DO rating before Satisfactory Closing/Inactive status: D. Sector and Theme Codes Original Actual Sector Code (as % of total Bank financing) Central government administration 12 12 Primary education 40 40 Secondary education 40 40 Sub-national government administration 8 8 Theme Code (as % of total Bank financing) Education for all 50 50 Education for the knowledge economy 50 50 E. Bank Staff Positions At ICR At Approval Vice President: Shamshad Akhtar Christiaan J. Poortman Country Director: Neil Simon M. Gray Theodore O. Ahlers Sector Manager: Mourad Ezzine Regina Maria Bendokat Project Team Leader: Adriana Jaramillo Jeffrey Waite ICR Team Leader: Adriana Jaramillo ICR Primary Author: Juan Manuel Moreno Olmedilla F. Results Framework Analysis Project Development Objectives (from Project Appraisal Document) Promote excellence in teaching and learning throughout the school sector, while continuing the push for the inclusion of all children at all levels of the basic education system. Revised Project Development Objectives (as approved by original approving authority) ii (a) PDO Indicator(s) Original Target Formally Actual Value Values (from Revised Achieved at Indicator Baseline Value approval Target Completion or documents) Values Target Years (b) Intermediate Outcome Indicator(s) Original Target Actual Value Formally Values (from Achieved at Indicator Baseline Value Revised approval Completion or Target Values documents) Target Years G. Ratings of Project Performance in ISRs Actual Date ISR No. DO IP Disbursements Archived (USD millions) 1 07/12/2004 Satisfactory Satisfactory 3.68 2 02/18/2005 Satisfactory Satisfactory 7.88 3 12/16/2005 Satisfactory Moderately Satisfactory 18.77 4 07/22/2006 Satisfactory Moderately Satisfactory 38.47 5 12/27/2006 Satisfactory Moderately Satisfactory 47.19 6 06/19/2007 Satisfactory Moderately Satisfactory 59.96 Moderately 7 11/02/2007 Satisfactory 72.50 Unsatisfactory 8 06/28/2008 Satisfactory Satisfactory 89.06 9 12/21/2008 Satisfactory Satisfactory 96.05 10 06/26/2009 Satisfactory Satisfactory 104.67 11 12/30/2009 Satisfactory Satisfactory 108.84 12 05/26/2010 Satisfactory Satisfactory 119.62 13 09/23/2010 Satisfactory Satisfactory 122.55 H. Restructuring (if any) ISR Ratings at Amount Board Restructuring Disbursed at Restructuring Reason for Restructuring & Approved Restructuring Date(s) Key Changes Made PDO Change DO IP in USD millions 06/13/2008 S S 86.43 iii I. Disbursement Profile iv 1. Project Context, Development Objectives and Design 1. This project was the second phase of the Education Quality Improvement Program (EQIP II), a two-phase Adaptable Program Lending (APL) that was prepared in a stable economic, political and demographic context. The implementation of EQIP I, designed to support the Government of Tunisia’s ambitious national education reform known as “School of Tomorrow,� was satisfactory, and the performance triggers set for the transition to the second phase of the APL were fully met. 2. The “School of Tomorrow� education reform was developed around five main areas: (i) revamping curricula and teaching and learning methods as well as improving the evaluation system of all levels; (ii) professionalizing teaching through a reform of the in-service training of teachers and principals, and revising the roles and responsibilities of teaching personnel; (iii) decentralizing the education system and creating more space for civil society to play a greater role; (iv) making the education system more equitable and inclusive; and (v) modernizing schools by integrating new information technologies into curricula and management. 3. The first phase of EQIP advanced very well the implementation of this ambitious reform, and the triggers for the second phase of EQIP were fully met by 2004 as follows: (i) Generalization of competency-based learning for grades 3 and 4 in all schools, completed by the beginning of the school-year 2003-2004, including all grade 5 teachers trained. (ii) Generalization of two-grade sub-cycles in grades 1 through 4 in all schools was completed by the beginning of the 2003-2004 school year. (iii) Extension of school self-assessments, as defined by school charters in at least 25 percent of schools. This was completed in 90 percent of schools. (iv) Development of a sector-wide strategy to manage student flows was completed. 4. Among EQIP I achievements, it is important to underline the increased student transition rate from basic into secondary education, mainly because of the abolition of the ‘entrance’ exam into secondary. As a consequence, repetition and dropout rates decreased dramatically in Lower Basic Education (LBE). To monitor learning outcomes, a national exam was introduced at the end of grade 4, to be complemented with results from the Trends in Mathematics and Science Test (TIMSS). However, repetition rates and dropouts in secondary continued to be a problem, and the anticipated expansion of that level of education would clearly increase the size of the challenge. Therefore, the challenge for the Government was to respond to the increasing diversity of secondary education students by widening the range of education opportunities and improving the conditions for teaching and learning. 5. Education expenditure as a share of total public expenditure and GDP was already significant, and that share could not be expected to increase. Given the rapid increase in 1 the number of students entering secondary, it was reasonable to expect the Government to look for cost-effective solutions that would guarantee the fiscal sustainability of its ambitious reform program. The second phase of EQIP was designed to support critical parts of the Education Action Plan, and therefore to fit into the Government’s overall education strategy. The project was meant to contribute to a better qualified labor force capable of competing in the global economy, by: (i) developing better links between secondary education, on the one hand, and vocational training and higher education institutions, and the labor market, on the other; and (ii) diversifying the secondary education curriculum in ways that would be more relevant to the needs of the Tunisian society and economy. 1.1 Context at Appraisal 6. Tunisia’s political and economic context had been reasonably stable for many years, and education has been a priority sector for decades. The Bank has a long tradition of support to the sector. At appraisal, the most recent CAS approved in April 2000 proposed Bank support for the Government in three major directions: (a) consolidating long-term development, mainly through human resource development, natural resource management, transport, rural development and municipal development; (b) supporting economic reform to enhance competitiveness and increase employment; and (c) promoting new initiatives that strengthen local institutions, launch new development niches, and mobilize external finance. 7. At appraisal it was already noted that pressure on the labor market would intensify, both as a result of steady demographic growth and as a consequence of stiffer competition faced by Tunisian enterprises due to international trade. Likewise, the education-related challenges were identified, mainly the need to meet the requirements of a diversified student population in secondary education. This, as already discussed, was a result of higher completion rates in primary or LBE. Therefore the emphasis on improving quality of education was at the core of the Government’s Education Strategy 2002-2007. 8. The Government identified the following four main policy goals for the education sector around which the planned education reform and the EQIP II were to be aligned: (a) extending improvements aimed at better learning outcomes to the most vulnerable children, so as to achieve full LBE completion by 2015; (b) responding to the increasing diversity of the secondary education population by widening the range of education opportunities; (c) enabling the secondary school system to be attuned to, and then adapt to, the needs of the Tunisian economy; and (d) taking advantage of the “lull� in the size of the LBE student population by focusing resources in cost-effective ways on quality improvements. These challenges have led the Government to place quality improvement at the heart of its education strategy for 2002-2007. 9. World Bank intervention in the area of quality and inclusion was both timely and critical, as both issues were and still are at the forefront of the Government’s education 2 agenda. In the areas of introduction of new technologies, evaluation and research, the Bank could share years of global experience with the introduction of alternative models, as well as access to first-rate expertise in these areas. In other areas, such as secondary education and career information and guidance, the Bank was then undertaking institution-wide work that could greatly benefit the project. Finally, the Bank’s long-term support through a two-phase, flexible APL was particularly valuable given the fiscal constraints, and particularly in light of the major investments needed as a result of rapid enrollment growth in upper basic and secondary education. 1.2 Original Project Development Objectives (PDO) and Key Indicators (as approved) Development objectives 10. The overall purpose of the Project was to support the Government’s objectives to achieve near-universal completion of basic education, to provide a greater number of students with opportunities for post-basic education; and to modernize the sector in ways that would improve the quality of outputs and the efficiency with which they are produced. 11. The PAD indicates that the original project objective was to promote excellence in teaching and learning throughout the school sector, while continuing the push for the inclusion of all children at all levels of the basic education system. 12. Per the Loan Agreement, the objectives of the Project were to assist the Borrower in reinforcing the process of reforming its education sector through: (a) promoting excellence in teaching and learning in an improved pedagogical and physical environment; and (b) ensuring that all children are provided with equitable and adequate opportunities to access quality education at all levels of the Borrower’s school system. 13. For the purpose of this ICR, since the wording of the PDO is different in the PAD and the Loan Agreement, we will be evaluating the one in the PAD. Key performance indicators 14. Progress against the above-mentioned objectives was to be measured by enrollment and completion rates, disaggregated by gender, and then by the share of non- salary expenditures in the education budget and the ratio of students per computer. The indicators were defined according to principles of relevance, measurability, feasibility and simplicity. Even more importantly, the choice of indicators and targets was suggested by the Government of Tunisia (GOT) in line with their own education reform goals and targets. The enrollment rates were categorized by gender and age groups (6-11 year-olds; 6-16 year-olds; 12-18 year-olds); while the primary education completion rate was classified by gender only. Intermediate targets for each of the outcome indicators were sequenced as follows: 3 Base Value 2004-05 2005-06 2006-07 2007-08 2008-09 2009-10 2003-04 Target Achievement Target Achievement Target Achievement Achievement Achievement Achievement Enrollment rate of 6-11 year-olds Girls 97,0% 97,2% 97,0% 97,3% 97,1% 97,5% 97,3% 97,4% 98,0% 98,5% Boys 96,8% 97,0% 96,9% 97,1% 97,0% 97,2% 97,3% 97,3% 97,4% 97,9% All 97,0% 97,0% 97,1% 97,3% 97,4% 97,7% 98,2% Enrollment rate of 6-16 year-olds Girls 91,0% 91,2% 91,0% 91,4% 90,8% 91,6% 91,1% 92,2% 92,4% 92,8% Boys 90,0% 90,2% 90,0% 90,4% 89,8% 90,6% 90,0% 91,1% 90,4% 91,3% All 90,5% 90,5% 90,3% 90,5% 91,6% 91,4% 92,1% Enrollment rate of 12-18 year-olds Girls 77,5% 78,0% 78,0% 78,2% 77,7% 78,4% 78,7% 79,9% 78,9% 81,4% Boys 73,5% 74,0% 73,0% 74,2% 72,6% 74,4% 73,5% 74,4% 72,1% 74,7% All 75,4% 75,5% 75,1% 76,1% 77,1% 75,4% 78,0% 15. Thus, in terms of enrolment performance indicators, considerable progress has been made throughout project implementation, showing unequivocally that the reforms have produced the desired results in that regard. This is particularly the case concerning the expansion of access to the second cycle of basic education and to secondary education as a whole (net enrollment rate reaching over 92% for the former and 78% for the latter). For all three indicators, targets set at the start of the project were exceeded by the time of the revised project closing date. Base Value 2003-04 2004-05 2005-06 2006-07 2007-08 2008-09 2009-10 2002-03 Target Achievement Target Achievement Target Achievement Target Achievement Achievement Achievement Achievement Completion rate of Basic Education Girls 60,1% 61,3% 62,5% 63,7% 62,8% 66,2% 64,0% 69,5% 65,1% 66,4% 68,6% 69,0% Boys 42,5% 42,9% 41,5% 43,9% 41,9% 45,5% 42,6% 48,0% 44,3% 46,3% 49,1% 51,0% All 51,4% 51,9% 53,1% 54,6% 55,8% 58,6% 60,7% Completion Rates of Secondary Girls 45,5% 64,7% 66,7% 69,7% 62,2% 69,2% 56,8% 67,9% 56,1% 61,1% 61,6% 60,6% Boys 42,9% 51,7% 53,0% 56,6% 48,2% 54,3% 42,6% 54,3% 41,9% 46,0% 46,5% 45,3% All 61,0% 54,8% 50,3% 49,6% 54,3% 54,7% 53,7% Share of non-salary expenditures First stage of BE 2,5% 2,5% 2,7% 2,5% 2,6% 2,5% 2,7% 2,5% 2,7% 3,3% 3,4% 3,2% 2nd cycle of BE and Secondar 6,4% 6,4% 5,5% 6,4% 5,3% 6,4% 5,2% 6,4% 4,6% 4,7% 4,5% 4,5% Ratio of students per computer First stage of BE 129 106 120 83 74 60 46 36 34 29 26 23 Second stage of BE 99 91 109 84 86 76 50 69 49 37 28 23 Secondary 45 38 65 30 60 23 35 15 33 26 20 19 16. Indicators concerning completion rates in both basic and secondary education attest to the improvement of internal efficiency of the education system throughout the 4 years of project implementation. However, while the targets set for basic education were comfortably met by project closing, this is clearly not the case with regard to secondary education. Furthermore, the evolution of this indicator appears at first sight extremely volatile, which immediately casts doubt as to whether it can really reflect the impact of project interventions. It is in fact not easy to account for a 20-point increase in the secondary education completion rate only one year after project implementation. And the same goes for the decrease of roughly 10 points over the next two years. Thus, the extreme volatility of this indicator during the first three years of project implementation could only be explained either by the low quality of data collection or by the impact of a variable that was not considered when choosing the indicator. It appears that the latter is the case; i.e., that the changes introduced in the Baccalauréat examination during those years are the key to accounting for the volatility in secondary completion rates during those years, a variable that is clearly unrelated to project investments and interventions. By project closing, though, that volatility had disappeared and, while there had also been progress in secondary completion rates for both boys and girls, the original targets were not met. Yet, progress accomplished in that indicator – both overall and specifically for girls – is very impressive, and proportionally much greater than that achieved in primary education. 17. The overall improvement in internal efficiency also calls for a nuanced analysis with regard to gender: Girls show completion rates exceeding those of boys by 18 percentage points in basic education and over 15 percentage points in secondary education. Even more importantly and more worrying, despite the overall progress in completion rates between 2003 and 2010, the gap between boys and girls has stayed exactly the same in basic education and has increased by two points in secondary education. Thus, the dropout phenomenon in general and that of boys in particular remains a concern in the second cycle of basic education and in secondary education (see section 3.3 on efficiency). This is certainly a challenge in every country in the world where secondary education has been rapidly expanded, which somehow makes Tunisia’s progress in secondary completion rates more impressive. 18. Indicators also show that the share of non-salary expenditures in the operating budgets allocated to the first cycle of basic education has improved from 2.7 percent to 3.2 percent while this ratio has decreased in the second cycle of basic education and secondary education, partly due to the increase in the teacher/student ratio, which inevitably resulted in an increase of the salary share in the budget, and partly due to the fact that the GOT records as “investment� expenditure on ICT equipment and some learning material which should be clearly considered as non-salary operational expenditures. The other indicator that was chosen as a proxy for quality of education was the ratio of students per computer, where targets were by far reached throughout project implementation. 19. In addition to the indicators discussed so far, the PAD also referred to the “National School Quality Monitoring for Grade 4,� which was about to be piloted in 2004 and which was obviously the only chance to have an external systematic and 5 rigorous measure of quality of education. The PAD stated that data from that national assessment would be considered as part of the overall monitoring and evaluation system, although no target value would be set, for obvious reasons. The grade 4 national assessment was eventually implemented but the data was never made available by the GOT, which prevented its use for project monitoring and evaluation purposes. 20. While there is no doubt about the relevance of the proposed indicators, it can be claimed that the considerable gap between projected outputs of the project and the expected outcomes (with its indicators) is a major shortcoming of this project’s results framework. All the selected indicators are broad system-level ones, which makes it difficult to claim any kind of attribution of project interventions to the accomplishment – or lack thereof– of the target values. The attribution issue was definitely not as important back in 2003 as it is now in the Bank, but it is still surprising that the project’s Monitoring and Evaluation system did not contemplate the need to evaluate, for instance, the levels of use of the equipment procured under Components A or D, the special needs program in disadvantaged areas, the kindergarten program, or the priority school program (PEPE), especially given the fact that many of these programs turned out to be very successful. The Bank team, aware of this shortcoming early during project implementation, proposed on many occasions to add to the original framework a number of results indicators that would better fit specific interventions supported by the project. These included both output and outcome indicators, related to the levels of use and implementation progress of the different programs financed by the project, including the competency approach curriculum reform (APC), the introduction of ICTs or the priority school program. While all this was reflected in detail in the Mid-term Review aide- memoire, the Borrower did not accept the proposed results indicators and the results framework reamined unchanged. 1.3 Revised PDO (as approved by original approving authority) and Key Indicators, and reasons/justification 21. The project development objective was not revised. 1.4 Main Beneficiaries 22. The main beneficiaries of this project were: 1. Students aged 6 to 18 (basic education and secondary education) and their families; 2. By focusing on PEPE schools (schools in disadvantaged areas), a major beneficiary group was school-aged children from poor families. 3. Another target group was children with mild disabilities; 4. Teachers, school managers, and district education officers were also a beneficiary group. 1.5 Original Components (as approved) 6 23. EQIP II was comprised of four components (10 subcomponents). The first two components directly tackled the topic of quality in the classroom, while the third one aimed at updating the school sector management, and the fourth one at improving the performance of the core systems. The fourth component played an important role in the implementation of the three first components. Component A: Inclusive Basic Education Sub-component A1 (Teaching for Improved Learning Outcomes) US$8.70 Million 24. The objective of this sub-component was to generalize the skills-based approach methodologies; modernize the teaching of languages and science; and introduce an optional studies program in basic education. The activities were: (a) provide technical support to teams responsible for developing basic education curricula using Approche par Competences (APC); (b) provide technical support to teams responsible for developing basic education textbooks and teaching materials using APC methodologies; (c) develop a learning assessment system for Upper Basic Education (UBE) that fits with APC methodologies; (d) provide primary schools with copy machines that enable them to implement child-centered teaching and formative assessment; (e) train UBE teachers in APC methodologies; (f) provide primary schools with equipment for teaching science; (g) provide primary schools and colleges with audio-visual equipment; (h) provide regional in-service teacher training centers (CREFOC) with language laboratories for training and upgrading English teachers in primary schools; and (i) strengthen training for LBE and UBE teachers in languages and science. Sub-component A2 (Equal Schooling Opportunities) US$3.80 Million 25. The objective of the sub-component was to integrate and mainstream vulnerable children into regular schools, and to enhance the quality of teaching in schools performing below regional and national averages, in parallel with the creation of new kindergarten programs. The activities to be carried out under this sub-component were: (a) implement a program to progressively integrate disabled children into mainstream schools; (b) extend and strengthen the Priority Schools Program (PEPE) in primary schools; (c) establish a pilot program to transfer funds to schools in PEPE to enable them to implement their School Improvement Scheme; (d) extend and strengthen the PEPE in colleges; (e) extend and strengthen PEPE in lycées; and (f) establish new kindergarten classes and disadvantaged areas. Component B: Diversity in Secondary Education Sub-component B1 (Diversifying the Secondary Education Curriculum) US$5.60 Million 26. The objective of this sub-component was to ensure that the secondary education programs covered the increasingly diverse student population. The activities concerned were: (a) develop curricula for technology programs; (b) provide technical support to 7 teams responsible for developing textbooks for technology programs; (c) implement new subject programs; (d) strengthen the teaching capacity of lycées by providing documentation and training equipment; and (e) evaluate the use of science and technology teaching materials in UBE and secondary education. Sub-component B2 (Career Information and Guidance) US$0.06 Million 27. The objective of this sub-component was to implement a system that would help students have access to information regarding career paths and education programs. The activities involved were: (a) establish an Information and Guidance Center to provide information and guidance on school programs, tertiary education programs and careers; and (b) develop schools’ capacity–human and physical–to provide career information and guidance. Component C: School Sector Management Sub-component C1 (School-Level Management) US$0.08 Million 28. The objective of this sub-component was to extend a decentralized and modern management system for schools and institutions to be able to do their tasks in accordance with the principles of subsidiarity and efficiency. The activities related to the sub- component were: (a) set up School Improvement Schemes in schools and Regional Improvement Schemes in regional MET offices; and (b) establish a regional system of monitoring, evaluation and support for the School Improvement Scheme. Sub-component C2 (System-Level Management) US$0.50 Million 29. The objective of this sub-component was to implement an integrated information system for management and oversight of the school sector. It was composed of six activities, as follows: (a) install the EduServ software in schools, to support management of teaching and administrative tasks; (b) install the MET’s information system in regional offices and extend the range of functionalities in use in central and regional units; (c) install a security system in the MET’s EduNet (on-line administrative network) and extend its functionalities; (d) train EduServ users, as well as other administrators and technicians using ICT; (e) develop a system for monitoring and evaluating ICT training programs; and (f) strengthen project monitoring by improving project monitoring software, developing a training program for project managers, and providing vehicles for monitoring at the regional level. Component D: Strengthening Core Systems Sub-component D1 (Training and Communication) US$1.00 Million 30. The objective of the sub-component was to launch a strategy to restructure the teacher training system in order to better fit the Tenth Development Plan training 8 requests; and create a communication strategy to inform both the population and teachers about the education reforms. It consisted of four activities: (a) modernize and decentralize teacher training through a study on the development of an in-service training system (including monitoring and evaluation of training) and implementation of the results of the study; (b) establish a system of pre-service professional training for supervisory staff; (c) establish a system of in-service professional training for supervisory staff; and (d) develop a communications strategy covering the main themes of school reform (including the PEPE and the integration of disabled children into mainstream schooling), aimed at teachers and the general public. Sub-component D2 (Information and Communication Technologies) US$16.00 Million 31. The objective of this sub-component was to integrate information and communication technologies (ICT) in the learning experience. The activities concerned were: (a) integrate ICT into the learning process by: (i) strengthening the importance given to ICT in curricula at all levels of the school system; (ii) developing ICT guides for teachers and school management; (iii) integrating ICT into subject-based and interdisciplinary studies; and (iv) introducing an ICT certification system for students; (b) ensure that teachers master the use of ICT in their teaching by: (i) developing ICT training programs; (ii) strengthening the training of ICT teachers trainers; (iii) developing ICT distance training tools; and (iv) introducing an ICT certification system for teachers; (c) strengthen the information system infrastructure and network by: (i) extending the EduNet network at the regional level; (ii) developing educational and cultural sites on EduNet; (iii) installing and networking computers in schools; and (iv) upgrading and decentralizing the services of INBMI to better respond to schools’ requirements; (d) establish a distance learning and training system by: (i) strengthening distance learning and training platforms; (ii) diversifying the range of distance learning and tutoring services; and (iii) monitoring and evaluating the activities offered by “virtual schools�; and (e) increasing the range of appropriate teaching and learning material available in digital form by: (i) producing multimedia digital teaching and learning material; and (ii) purchasing multimedia digital teaching and learning material. Sub-component D3 (Assessment and Evaluation) US$0.60 Million 32. The objective of this sub-component was to ensure regular assessment of learning achievement as well as to strengthen education research and innovation. Six activities were involved, as follows: (a) organize and manage regular national assessments, by implementing the assessment test item bank (developed in part under EQIP I) and establishing a system for analyzing and interpreting the results; (b) organize and manage regular international assessments, namely PIA and TIMSS: (c) set up the Observatory of Teaching and Learning Innovation CNIPRE, within the Education Research Institute; (d) strengthen and modernize the CNIPRE (e) develop publications aimed at the teaching community (especially the “Bulletin pédagogique� and the “Bulletin de liaison� “Kifayat�; and (f) promote education research and innovation, through participation in international meetings. 9 Sub-component D4 (Infrastructure) US$94.00 Million 33. The objective of this sub-component was to anticipate the increase in the number of students in primary and secondary education and therefore enhance the studying conditions in LBE. Four activities were involved: (a) improve learning conditions in LBE by building, renovating and equipping multipurpose classrooms in primary schools; (b) increase infrastructure capacity in UBE by building and equipping new colleges, and by building and equipping science and technology classrooms in existing colleges; (c) increase infrastructure capacity in secondary education by building and equipping new lycées, and by building and equipping science and technology classrooms in existing lycées; and (d) implement a program of maintenance and rehabilitation for primary schools, colleges and lycées. 1.6 Revised Components 34. The components were not revised. 1.7 Other significant changes 35. By Mid-term Review, it became clear that additional resources in Tunisian Dinars would be available due to appreciation in the exchange rate of the Euro against the local currency. It was thus agreed to use the extra resources to increase the number of buildings in primary and secondary schools to be rehabilitated. 36. A first extension and fund reallocation of the project was approved by the Bank in June 2008. This first extension was justified first by the savings generated by variations in the exchange rate and second by delays in project implementation. Procurement was experiencing severe delays at that particular point, due to the absence of a project coordinator as well as the rather cumbersome procurement practices in Tunisia. The Government requested this first reallocation of funds to support its priority to scale up the ICT program, which basically entailed increasing the number of schools to be equipped with computers. Along the same lines, in order to fully implement the language curriculum in schools, the equipment of language labs was deemed necessary. . In addition, the project also financed the development of an education portal, EDuNet, with teaching and learning resources available for teachers and students. Therefore, an extension was granted for 12 months, until June 30, 2009. Since the reallocation of funds involved more than five percent of project costs, a Project Paper was prepared and approved by the Bank’s Regional Vice-President (RVP) as a third order restructuring. 37. After reviewing the project’s implementation progress during the supervision mission in May 2009, delays in the implementation of several activities were again identified. A review of the procurement plan for goods, works and services showed that some equipment purchases could not be completed prior to the revised closing date. In particular, large language laboratories and other IT equipment contracts (amounting to 10 about US$25 million) were in the process of being delivered or being signed and it was evident that a second extension and reallocation of funds to support the IT school infrastructure and small rehabilitation works for schools was required. Thus, this second extension for another 12 months (until June, 30, 2010) and reallocation allowed the full execution of a number of contracts that were crucial to the accomplishment of the project development objective. Also in this case, a Project Paper was prepared by the team and approved by the Bank’s RVP. 2. Key Factors Affecting Implementation and Outcomes 2.1 Project Preparation, Design and Quality at Entry 38. Preparation and design: The project was designed on the basis of the lessons learned from the implementation of EQIP I. However, the ICR for EQIP I was prepared only after EQIP II had been appraised and approved by the Board. At the time of preparation of EQIP II, it was estimated that the first phase was well managed and coordinated on the Borrower’s side, so the same organizational structure and implementation arrangements were kept for the second phase of the APL. Although this was the case, a more analytical and objective assessment of weaknesses observed during the implementation of EQIP I could have benefitted the project design of EQIP II. 39. Bank intervention in the area of quality and inclusion was critical, as both issues were at the forefront of the challenges faced by the education system, and had Government ownership. The Bank’s long-term support through a two-phase, flexible APL was particularly valuable given the fiscal constraints, and particularly in light of the major investments needed as a result of rapid increases in enrollment in upper secondary education. 40. Although the approved minutes of the Concept Review meeting state that since the Government was well prepared for the implementation of this type of project, it could be argued that the complexity of the four components of the project called for a wide range of actors and institutions within the education system to work in a collaborative and coordinated way, which was not, and is still not, a practice observed in the Tunisian context. 41. As already discussed above, the results framework and the overall monitoring and evaluation system were probably the weakest aspect of the project design. The indicators chosen were too broad and, while relevant for monitoring progress of the general education reform, were simply not sufficient to properly follow up on the implementation of project interventions. This was an even more acute problem with regard to quality of education indicators, which was to be measured and monitored only in terms of the share of non-salary expenditures in the budget and the student/computer ratio. Broadly speaking, the project design did not sufficiently emphasize the need to use of results monitoring to provide meaningful feedback to decision makers in the Government. This was compounded, all through project implementation, with the reluctance on the part of 11 the Borrower to collect and/or share information and data. To be fair, though, it should be acknowledged that Tunisia became one of the very first countries in the region that decided to participate in both TIMSS and PISA, and this happened during the implementation of EQIP II. Moreover, the GOT also supported specific evaluation studies of some of the key project interventions, although it never agreed to add new indicators to the results framework or to share the results of the 4th grade test pilots. 42. Concerning quality at entry, the high level of ownership and the alignment with the overall education reform program of the Borrower have already been stressed. Probably the best indication that all this was the case lies in the fact that the project became effective only two months after Board approval, a short time lapse that is certainly not very common in the region. Further, implementation was off to a very good start during the first couple of years, with very solid project management and quick disbursement. 43. Assessment of risks: Five risks were identified at preparation stage, four of which were assessed as moderate (M) and one as negligible (N). Risk Risk Mitigation Measure ICR Assessment of the Rating Risks From Outputs to Objectives Applying a skills-based M Curriculum development and Although the mitigation teaching methodology might teacher training were prepared measures were correctly have triggered resistance from accordingly identified and, to a upper basic education teachers certain extent, also implemented, the time needed to introduce changes in teacher’s practice was underestimated. Diversifying the secondary M The Government’s reforms set Reforms introduced by school curricula to 9 sections up opportunities to change GOT certainly increased might have oriented pupils to tracks, and thanks to internal flexibility and mitigated choose a track according to monitoring of pupils, they can the effects of early their gender and socio- be better guided to appropriate student selection. Yet, economic status subject tracks. Further, more should be done in number of tracks was reduced this regard. to 6. Teachers might refuse to M The Government created two The reluctance of the involve communities into structures within schools – a Teachers Union was school management professional-only Academic underestimated, and this Council and a mixed School clearly delayed the Council – to reassure teachers implementation of the that they remain in control of School Councils. academic issues Further, the role and the entrenched position of Teacher Unions was also neglected with regard to the school improvement plans (projet 12 d’établissment), a critical element of the quality of education-oriented reforms. Communities, especially in M EQIP II encompassed a grant This program was very disadvantaged areas, might not for pilot schools participating well implemented and have the necessary skills to in the Priority Schools yielded more results than participate in the management Program which could fill in anticipated. of a school the need for training Despite what MET had shown N MEF’s capacity to through the implementation of implement this project EQIP I, it was feared that the was put under test, and project might be too complex although the for the MET to implement performance related to inputs was satisfactory, MEF showed weakness in articulating in a coherent manner all aspects of the reform, its links to the project, and the use of M&E data for decision making. 2.2 Implementation 44. The first two years of implementation went well, and important progress was observed in the implementation of activities such as school construction, teacher training, support to PEPE schools and integration of children with disabilities. However, there were activities in which slow implementation was observed, such as the curriculum reform in secondary schools, activities related to school and system-level management, introduction of ICT, and assessment and evaluation. By the Mid-term Review, the conclusion was that those activities in which the Ministry had good experience in implementation were on schedule. However, activities that required consulting services, or introduction of new know-how, such as school and system management, assessment and evaluation, or the use of ICT, were all experiencing delays. 45. One critical element that contributed to those implementation delays was that, for a period of 18 months, the project did not have a Project Coordinator. As a result, day-to- day project management tasks and responsibilities such as searching for appropriate consultants, drafting TORs or preparing bidding documents were significantly delayed. Moreover, poor coordination between the Director of Buildings and Equipment (DBE), who was the interim Project Coordinator during that period and technical departments became acute. Given the amount of activities envisaged, and the need to articulate them within each component, the project called for close coordination during implementation. Further, the interdependence of the different components and the importance of articulation to achieve results in terms of better student learning outcomes demanded strong leadership and coordination of all the different actors and responsible units. 13 46. Thus, although progress was observed in school construction, teacher training and, after the Mid-term Review, procurement of equipment and labs for schools, CREFOC and Regional Offices (DRE), the lack of coordination did not allow for a comprehensive vision of the project, i.e., how specific interventions were to contribute to improving quality and equity in education. Once a Project Coordinator was appointed in May 2008 (one month before the original project closing date), positive signs were immediately felt, although the delays observed in procurement, in particular related to consulting services, continued to hinder the achievement of project outcomes. In any case, implementation progress improved substantially after the first extension of the closing date was granted, also due to the assignment of several staff to the various types of procurement (construction, rehabilitation, equipment and selection of consultants), an issue that had been raised repeatedly by the Bank in several supervision missions. Project management in general, processing and monitoring of contract execution, and reporting all improved substantially. As a result, while disbursement was just slightly over 50 percent by 2008, the project finally closed in June 2010, with 93 percent of the funds disbursed. 2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization 47. As suggested above, key performance indicators were relevant but too broad. At the time of the Mid-term Review, the Bank team stressed that more output indicators were needed in order to better establish a link between project interventions and monitorable indicators. In addition, given the importance of the ambitious education reform that was being implemented and the many elements that it envisaged, it was proposed to develop a more comprehensive framework to monitor improvements in quality, equity and progress in reform implementation. The Mid-term Review aide- mémoire suggested indicators such as the percentage of teachers following the APC, or the number of schools with an active School Council. Likewise, it noted that the national grade 4 evaluations should be used as a way to monitor progress in learning outcomes (even if the original agreement that it was not necessary to define any particular target value continued to make sense). However, the MET was not keen on introducing these changes, as it is acknowledged in the aide-mémoire of the following supervision mission. Thus, the necessary revamping of the results framework for the project was not pursued any further. 48. Although the PDO was clearly related to equity and inclusion, and the project had important activities to promote them, such as the PEPE and the integration of children with disabilities, there were no specific indicators in the results framework to follow up on them. Thus, also as a result of the Mid-term Review, indicators to monitor integration of handicapped students as well as progress made in PEPE schools were agreed upon, although they were not formally incorporated in the M&E system, again due to the reluctance of the GOT, which was adamant about keeping the original results framework, because of its consistency and alignment with its own education reform strategy. The lack of specific quality and equity indicators also made it difficult to focus on learning outcomes, clearly the most appropriate way to monitor quality improvements. 14 Unfortunately, this also hindered the possibility of providing evidence and showcasing major project achievements in the area of inclusiveness and equity. 49. Despite all of the above, monitoring and evaluation was upgraded to satisfactory by the end of 2008 on the basis of the improvements in the monitoring and reporting of progress on implementation activities. This was possible thanks to the appointment of the project coordination director in May 2008, who submitted timely progress reports to the Bank, thus enabling the Bank team to better assess the progress on the monitoring indicators and provide quantitative information related to specific project outputs. It was noted then that data on repetition and dropout rates for schools in underserved areas (PEPE schools) were reported for the first time since the project became effective, thus making it possible to monitor equity indicators that, as already pointed out, were not part of the original results framework designed for the project. 50. MET used project indicators to monitor progress of the overall education reform. For instance, the observation of continuous and invariably high repetition and drop-out rates triggered the decision to commission a study to analyze their underlying causes. Likewise, a study to measure improvement of learning outcomes in PEPE schools funded by UNICEF demonstrated the benefits of the program, and led the MET to consider generalizing the idea of allowing schools to manage additional funds on the basis of a School Improvement Fund. These two studies made the M&E system for the project more relevant, allowing for a better and more ambitious use of data for policy making. 51. Although it can be said that MET produces and uses data for policy making, and that information on project key performance indicators was always available, given how broad and system-wide these were, a tight monitoring of impact of all project interventions was not really carried out during the life of the project. Finally, although there was timely reporting on system indicators such as enrolment, completion rates and the share of the non-salary expenditures, data from the grade 4 national examinations was never made available, which entailed the absence of a national indicator on quality of education which could go beyond weak proxies such as the computer/student ratio or the share of non-salary expenditures. In general, it could be said that there is still room for improvement regarding transparency and active dissemination of data, and on translating analytical information into policy action. 2.4 Safeguard and Fiduciary Compliance 52. Fiduciary: Financial management generally was globally acceptable. EQIP II had adequate staff capacity, accounting, internal control system and satisfactory annual audit program. No particular fiduciary issue was noted; EQIP II, as well as other projects, were implemented with the same management structure and supervised. The Project Management Unit (PMU) prepared the financial statements (commitments and disbursement by components, sub-components and category and also by financing sources). 15 53. Audits were conducted annually by Contrôle Général des Finances, delivered to the Bank, and revealed no particular significant accounting issues. 54. Procurement was rated moderately satisfactory considering that there were no serious fiduciary issues but rather issues of non full compliance with agreed procedures, particularly with regard to the selection of consultants, and delays in procurement processing. During the period in which there was no Project Coordinator, the project was rated as moderately unsatisfactory. However, after a new Project Coordinator was appointed, it was rated satisfactory. 55. Environment protection: The only safeguard policy triggered by the project was the environmental assessment (OP/BP/GP 4.01). The Bank’s safeguards team concluded that EQIP I was not an at-risk project, and therefore EQIP II was supervised on the same basis. In order to comply with OP 4.01, an environmental assessment review was carried out for EQIP I, as a result of which the Bank only financed schools cleared under the agreed procedure. The Government carefully selected the places where schools needed to be built or renovated. In addition, every new construction site had to be cleared on the basis of the environmental assessment in order to get the authorization to start the works. 56. Land acquisition: No issues related to other safeguards, in particular involuntary resettlement and land acquisition were noted. The results of applying the land acquisition assessment procedure in EQIP I showed that private owners in fact benefited from donating land for school construction. For each site acquired via donation, a land acquisition assessment was conducted prior to construction to ensure that it would cause no negative impact on persons or groups, nor create issues related to OP/BP 4.12. 2.5 Post-completion Operation/Next Phase 57. During the last year of implementation, the Bank team and the Government engaged in a dialogue to analyze lessons learned from the implementation of the reform with the aim of identifying ways forward for a follow-up project. The MET identified four critical areas for this analysis:  the use of ICT to improve school management and teaching and learning;  integration of children with disabilities;  the experience of PEPE schools and the use of School Improvement Plans to improve school performance; and  decentralization, Regional Education Plans, and School Management Committees. 58. For all these topics, MET officials prepared analytical reports that were discussed with the relevant organizational units and shared at a half-day workshop that took place during the last supervision mission. As a result, a new education sector operation has been identified and agreed to in the context of the recently approved Country Partnership Strategy. Lessons learned from EQIP II will be integrated into this new operation. The timing and content of the new project are being discussed between the MET and the Bank. 16 3. Assessment of Outcomes 3.1 Relevance of Objectives, Design and Implementation 59. The Development Objectives were perfectly in line with the MDGs, and consistent with the country’s social and economic development goals. 60. The GOT education reform goals were: (a) to extend improvements of learning outcomes to the most vulnerable children, so as to achieve universal LBE completion by 2015; (b) to respond to the increasing diversity of the secondary education population by widening the range of education opportunities; (c) to enable the secondary school system to be attuned to, and then adapt to, the needs of the Tunisian economy; and (d) to take advantage of the ‘lull’ in the size of the LBE student population by focusing resources in cost-effective ways on quality improvements. These challenges led the Government to place quality improvement at the heart of its education strategy for 2002-2007. The whole APL was prepared as a key instrument for the implementation of that education strategy. Therefore, the relevance of the objectives and project design is clearly very solid. Moreover, the fact that the policy areas selected by the Government for a follow-up education operation fit squarely with those supported by EQIP I and II could also be read as strong evidence that the interventions implemented by EQIP II were highly relevant. 3.2 Achievement of Project Development Objectives 61. The Development Objectives of this project were achieved, and all through project implementation, progress towards their accomplishment was rated as satisfactory. Investments in infrastructure, curriculum reform, teaching and learning materials and ICTs clearly contributed to modernizing schools in Tunisia and therefore to “promoting excellence in teaching and learning�. Even if the results of the 4th grade national test were not made available by the GOT, Tunisia´s results in TIMSS 2007 and PISA 2006 and 2009 show sustained improvement. In terms of ensuring equal access to education opportunities, the PDO was fully accomplished – which includes lower secondary – as far as basic education was concerned–which includes lower secondary–and was only partially achieved when it comes to the target set for upper secondary education. The most importance nuance that needs to be raised to this general conclusion is that the gap between boys and girls has stayed unchanged despite evident progress in the overall indicator. On the other hand, the success of the PEPE schools and the programs related to expanding kindergartens and integrating students with special needs, also attests to important progress in ensuring equal access to education. 62. The success of the PEPE schools led MET to emphasize the role of the community and the participation of parents in the life of schools. It was also a critical way to demonstrate the importance of allowing schools to manage supplemental resources based on the preparation of school development plans. This led CNIPRE to 17 prepare manuals and guidelines for primary and lower and upper secondary schools to help them reestablish School Councils, which, coupled with the assistance provided to School Districts in the preparation of Regional Education Plans, were important steps towards the decentralization of the system. In this regard, however, both the Government and the Bank probably underestimated the resistance and reluctance of teacher unions, principals, and regional administrators towards school-based improvement plans, curriculum development and management. Project Development Objective Outcome Indicators 63. The overall primary education completion rate increased from 51 percent in 2004 to 60 percent in 2010. By gender, the completion rate of girls increased from 62 to 69 percent, reaching the target set at appraisal. For boys, completion rates went from 41 to 51 percent, slightly ahead of the target set at appraisal of 48 percent. However, completion rates in secondary education went through a quite volatile evolution which has already been discussed above. Changes in the Baccalauréat examination seem to account for the steep changes in that indicator during the first two or three years of project implementation. Besides, the persistence of high repetition and drop-out rates among boys would also explain that the target values for secondary school completion were not met, despite evident progress made both in terms of absolute numbers and percentage of completers. 64. Regarding quality and sector management, a key performance indicator was to increase the share of MET operational budget allocated to non-salary expenditures disaggregated by level. Between 2004 and 2010, this allocation increased for primary education from 2.7 to 3.2 percent, thus meeting the indicator target. For secondary education it went from 6.4 to 4.5 percent, partly due to the dramatic change in the student/teacher ratio, which went from 20.4 to 13.4 resulting in an increase in the salary mass and therefore its relative share in the budget, and partly due to the prevailing practice of categorizing as “investment� the expenditures on ICT equipment and some teaching and learning materials. 65. The project made important contributions regarding introducing ICT to improve the management of the system, as well as to modernize schools and to allow teachers and students to use new technology in their teaching and learning activities. A key performance indicator used to measure this was the ratio of student/computers by level. This went from 129 students per computer to 23 in primary education, reaching above the target of 36; from 99 to 23 in upper primary reaching above the target of 69; and from 45 to 19 in secondary, slightly below the target of 15. 66. It is also worth mentioning that the software EduSERV was launched and is being used by all schools and the EduNet intranet portal is used by schools and stakeholders (students, parents and Ministry) to monitor learning outcomes and as the data collection mechanism for the EMIS. 18 3.3 Efficiency 67. During the period 2004-2010, a decline in enrollment in primary and secondary education has been recorded subsequent to a demographic trend that began with the decline in primary education total enrolments since the mid-1990s and then continued to secondary school enrolment from 2005 onwards. This decrease was 17 percent in primary and 5 percent in secondary, while enrollment in higher education increased by about 20 percent. During this same period, total public funding for education and its distribution between sub-sectors did not change: the share of the education sector in the state budget increased from 21 to 22 percent, while the distribution among sub-sectors remained unchanged (70 percent is allocated to primary and secondary education, 25 percent for higher education and 5 percent for vocational training). The budget of MET allocates 41 percent for primary education and 59 percent for secondary education; these proportions were 46 percent and 54 percent in 2004, respectively. Unit costs at primary and secondary education increased in real terms by 48 percent and 57 percent, respectively, between 2004 and 2010, reflecting the policy goal of improving quality of education during this "demographic window" period. Unit costs in higher education rose by only 5 percent. In terms of proportion of GDP per capita, unit costs for primary education changed from 15.6 percent in 2004 to 18.8 percent in 2010; in secondary education from 20.8 to 26.5 percent; and in higher education from 28.3 to 19.1 percent. 68. The internal efficiency of primary education has improved: the dropout rate was significantly reduced in 2009 – down to 1.3 percent from 1.7 percent in 2004 and 2.9 percent in 2000. Similarly, the repetition rate went down to 6.5 percent in 2009, from 8.3 percent in 2004 and 13.8 percent in 2000. However, there appears to be a consistent trend of higher repetition and dropout rates in tertiary education: 17.2 percent and 11.4 percent, respectively, in 2008 compared to 23.4 percent and 9.4 percent in 1998. Concerning secondary education, internal efficiency in the last decade has stagnated: the repetition rate exceeds 15 percent and dropout rate is about 11 percent. Low internal efficiency in secondary schools is particularly acute in the 7th grade, where about one student in four repeats. Expressed in absolute numbers, the problem of school dropouts comes across as even more striking: in 2008, 15,966 cases of dropouts were recorded in primary education, 65,631 cases in cases in lower secondary and 58,634 in high schools, a cumulative total of 140,231 cases. This can be explained by the growing heterogeneity of students and the lack of appropriate pedagogical support in dealing with that diversity in the classroom. Further, the absence of a national assessment system replacing the former access exam to lower secondary education and the lack of appropriate supportive measures in the transition from primary to lower secondary education, also account for structurally high repetition and dropout rates in secondary education. 3.4 Justification of Overall Outcome Rating Rating: Satisfactory 19 69. There is no doubt as to the relevance of the indicators that were used, although more specific education quality and equity indicators were needed and could have been introduced after the Mid-term Review. The PDOs were nonetheless almost fully accomplished, and the exception regarding the targets set for secondary education completion rates is at least partially related to changes in the secondary graduation examination system, which should obviously not be attributed to the project. Persistent repetition and drop-out rates among boys in secondary education continue to be a critical challenge in Tunisia, as they are in most developing and developed countries, despite all the project investments in curriculum reform, priority schools, technology, teaching materials and improvement of physical infrastructure. Other than this exception, it has been shown that internal efficiency in both primary and secondary education has improved significantly over the period of project implementation. 3.5 Overarching Themes, Other Outcomes and Impacts (a) Poverty Impacts, Gender Aspects, and Social Development 70. The emphasis on equity proposed in this project clearly yielded results. On the one hand, the PEPE schools targeting poor populations were successful in raising student learning outcomes. The study financed by UNICEF in 2007 compared learning outcomes between PEPE and mainstream schools showing that 16 percent of the lowest performing PEPE schools in 2000 were performing among the top performing schools in the country seven years later; and 47 percent were obtaining results around the national average. An impact evaluation of PEPE was launched recently, in order to evaluate the program after 10 years of implementation, encompassing the entire duration of EQIP I and II. If that study were to confirm that the earlier results in learning outcomes have been sustained between 2007 and 2010, PEPE may end up being regarded as one of the most effective programs of its kind. Raising outcomes of low performing schools is one of the most elusive goals in the education sector of any country, developed or developing, and one that always requires much more than just resources being thrown at it. 71. Furthermore, the successful integration of disabled children into normal schools gave a good example of inclusion and prompted MET officials to analyze how the pedagogical changes that were required to integrate students with disabilities were instrumental to develop innovative pedagogical solutions that could work well for all students, including those more at risk of failure, repetition and drop-out. 72. On gender, girls are outnumbering boys in both primary and secondary education. The difference in enrollment in primary is small, just 1-2 percent, but in secondary it is quite high, with 81 percent of girls enrolled, compared to 74 percent of boys. When it comes to learning outcomes, girls are clearly outperforming boys at all levels, a phenomenon that has become global and that is also turning to be the norm in the MENA region. As for completion rates, which have been thoroughly discussed above, the gap 20 between girls and boys in both primary and secondary education and how it has remained unchanged throughout the whole period of project implementation is indeed alarming. (b) Institutional Change/Strengthening 73. The Task Team was proactive and innovative when it put in place mechanisms to facilitate decision-making and implementation coordination among several parties involved during the most critical period regarding project management and coordination, i.e., the 18-month lapse where there was no Project Coordinator. After a new Project Coordinator was eventually appointed, project implementation was supported by a strong team in charge of the various aspects of project management and coordination. For new school construction, the MET relied on the support that was provided by the Ministry of Works, which proved to be the best way forward. In the long term, and considering the impact of demographic shift, it is clear that there will be less new school construction at UBE and even less at LBE. Thus, in the near future, the role of the DBE of MET will also shift to focus on the improvement and maintenance of the assets (buildings and equipment) resulting from the investments made in the last decades. A critical element will be how to develop ownership of school buildings by their communities. For this task the DBE will have to be self reliant at central level but also will have to develop capacity at the regional and local levels, which will definitely entail deepening the still relatively timid process of administrative decentralization. The budget allocation should also follow this trend and shift resources to maintenance – which is as of now well below the demand and needs. The allocation of resources should also be supported by a shift in managing the government assets. Maintenance should become a programmatic activity fully integrated in the institutions life. For this to succeed, it is necessary to have staff adequately trained and provided to institutions, routines established, budget and responsibility decentralized. The institutionalization of the School Development Plans and the empowerment of School Councils, probably the least successful undertaking of the reform and therefore of this project, are clearly a tool to achieve these objectives, in addition to being key to a more transparent and accountable school system. (c) Other Unintended Outcomes and Impacts (positive or negative) 74. Not applicable. 3.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops (optional for Core ICR, required for ILI, details in annexes) 75. Not applicable. 4. Assessment of Risk to Development Outcome Rating: Modest 76. Risk to development outcome should be considered as modest because of the very strong foundation that has been laid in the context of a system-wide reform ongoing for 21 almost a decade, and also because of highly motivated Ministry officials with a clear vision of the future of the sector and the capacity to carrying the reform forward. While it is obviously true that the recent regime change in Tunisia brings some uncertainty as to how the emerging political leadership in the country will shape its education policy and, in particular, which of the high-level technical staff at the Ministry will stay or leave, there is every reason to believe that a democratic regime in a country that was already fully committed to education reform will only prioritize the sector even further. At the time of project closing, the Government discussed with the Bank what a follow-up operation might look like and which policy priorities and interventions would be envisaged. After the two phases of this APL have been successfully implemented, the fact that the Tunisian Government is relying on the Bank as a source of financing and policy advice is a clear sign of their commitment to the education reform and to maintaining implementation momentum. 5. Assessment of Bank and Borrower Performance 5.1 Bank Performance (a) Bank Performance in Ensuring Quality at Entry Rating: Moderately Satisfactory 77. The project was prepared as the second phase of an APL after a successful completion of the first phase and with all the triggers for the transition to the second phase fully met. The second phase featured a comprehensive design, with a balanced combination of quality, governance, training, and infrastructure-oriented interventions. It contemplated system-level interventions regarding curriculum and capacity-building with school-level initiatives and innovative programs such as PEPE. This design was certainly very ambitious and fit squarely in the context of the ongoing education reform in Tunisia. 78. As discussed in detail above, perhaps the only shortcoming in the design was the monitoring and evaluation system and, in particular, the lack of a more specific results framework and a more forthcoming plan for the projected use of results in policy decision-making. The GOT led the preparation of the results framework, including the choice of indicators and targets, which ensured ownership but left little room for the Bank to influence the choice. Since the Bank team was preparing a project to support a major GOT education reform, it opted to use the Government’s own indicators and targets, as the benefits of such an approach, in terms of ownership and simplicity, outweighed the limitations concerning the attribution of outcomes to project interventions. (b) Quality of Supervision Rating: Satisfactory 79. The Bank Task Team did a good job in supporting the implementation and discussing follow-up ideas. Thirteen ISRs were prepared over the 6-year life of the 22 project, which is a satisfactory pace of reporting. Supervision missions had a periodicity of twice a year with 12 visits over 6 years. The aide-mémoires and ISR reports were informative, concise, and provided an opportunity for follow-up of issues encountered in the field. Supervision missions were always well organized, combining skills among the Bank team members to respond to issues and needs observed during project implementation. The regularity of ISRs and aide-mémoires stressed improvements in both the implementation and achievement of development objectives throughout the project. Issues were mentioned in a very realistic way, with clear statements and guidelines for improvement. Bank performance was also proactive and strategic during the period when there was no Project Coordinator at the PMU, first by finding a workable alternative within the Ministry of Education, secondly by facilitating support to the PCU from another Ministry in the Government. 80. Concerning the M&E system and the results framework, the team did everything in its capacity to convince the GOT that more specific quality and equity indicators needed to be introduced in order to allow for a better linkage between project interventions and outcomes. As already discussed, the GOT resisted this and was also not willing to make public, let alone share with the Bank, the results of the 4th grade test pilots. In any case, however, thanks to the pro-activity of the Bank Task Team and to the initiative and support of other international donors, key evaluation studies were undertaken as early as 2007 that offset that shortcoming to an extent. Further, the GOT decision to participate in PISA and TIMMS, advised and supported by the Bank Task Team, also provided internationally valid and transparent information on quality of education results in Tunisia. (c) Justification of Rating for Overall Bank Performance Rating: Moderately Satisfactory 81. The PAD and all framework documents were duly designed/drafted/provided, as well as all ISRs, Mid-term Review report and project documents related to project extension. The Bank team provided support both in terms of content and fiduciary compliance throughout project implementation. 82. The Bank team responded to the needs of the project in a flexible manner, working closely together with the client during the implementation of the project and being resourceful and proactive during the period when there was no project director on the borrower side. Good relationships established with the Ministry counterparts in charge of project management made it possible to promptly resolve issues and bottlenecks that came up during implementation. The task team successfully managed the approval of both extensions and reallocations of funds. Finally, and most importantly, the team was successful in providing advice and technical assistance to help the Ministry of Education in the identification of a new operation in the sector which would build on the accomplishments of EQIP II and address the challenges in terms of quality, equity and governance. 23 83. Regarding quality at entry, it is still estimated that, even in the absence of learning outcomes measures, a more appropriate results framework oriented towards linking better project intervention to outcomes and outputs could have been used, hence the moderately satisfactory rating. As for quality of supervision, the satisfactory rating is warranted for the reasons discussed above. The overall rating of Bank performance stays as moderately satisfactory. 5.2 Borrower Performance (a) Government performance in ensuring Quality at entry Rating: Moderately Unsatisfactory 84. During project preparation, there was a high level of Government ownership, as evidenced by the fact that the project became effective only two months after Board approval. In addition, the Government collaborated well in following Bank guidelines and procedures. However, severe delays in the implementation of several activities due to the cumbersome procurement procedures observed in Tunisia resulted in delaying and sometimes even cancelling activities. This was particularly evident with regard to ICT procurement and consulting services. During the period where there was no Project Coordinator, these delays became critical, and the coordination among components also failed. Consequently, the project had to be extended for two years. (b) Implementing Agency or Agencies Performance Rating: Moderately Unsatisfactory 85. The PCU prepared progress reports, initially on a yearly basis and once the new Project Coordinator was appointed, every six months in preparation for each Bank supervision mission. These reports enabled both the Bank and the Borrower to better understand the state of play of the project at these specific points in time, and to focus more strongly on finding solutions to the issues raised. 86. Financial Management Review: Accounting controls, auditing and reporting has been rated as moderately satisfactory in the ISR FM Questionnaire in the last two years because of delays in producing Interim financial reports and annual audit reports, and also because of some issues revealed in the audit reports. These FM delays were related to the complexity of the project, the number of transactions involved and the number of entities in the regional level that resulted in coordination problems, flow of information bottlenecks and reporting delays. Thus, financial reporting procedures were deemed to be an element to be improved with a more integrated comprehensive management information system and specific procedures of information flow between regional and central levels. 24 87. Procurement was rated moderately satisfactory considering that there were no serious fiduciary issues but rather issues of full compliance with agreed procedures -- particularly with regard to the selection of consultants -- and delays in procurement processing. Often times, the lack of full compliance was due to the pressure exerted by the tender board chairs (who report to the Prime Ministry and not to MET) to apply inadequate national procedures. Moreover, obtaining final clearance from these tender boards takes a long time and leads inevitably to delays in procurement processing. (c) Justification of Rating for Overall Borrower Performance Rating: Moderately Unsatisfactory 88. The overall borrower performance has been rated as moderately unsatisfactory on the basis of the following: (a) refusal to make public the results of the 4th grade national test, including for purposes of project monitoring and evaluation (b) refusal to modify the results framework/indicators by Mid-term Review, (c) inability to fill the position of the Project Coordinator for 18 critical months, (d) slow responses on procurement and other implementation matters, and (e) failure to implement governance and management reforms related to School Improvement Plans and empowerment of School Councils 6. Lessons Learned 89. The design and implementation experiences of the project have yielded a number of considerations and lessons learned that may be useful in shaping future projects of this nature:  Timing of Education reform. It is always a challenge to find the best possible synchronization between planned project implementation plans and the national “rhythm� in creating the conditions for education reform. This has regulatory, financial, governance and institutional capacity implications that can hardly be predicted during project design, yet can become a major risk for project implementation. In particular, the lesson learned here is that the more integrated the project is into the national schedule of the national reform – including budgetary sources and implementation procedures – the more successful it will be in accomplishing its objectives.  A separate political consensus process is needed, after proposed reforms are ready, to explicitly address political sensitivities and develop political ownership. Technical and professional consultations on proposed reforms are necessary but not sufficient. This is perhaps the reason why the governance and school management reforms – creation of school councils, introduction of school-based improvement plans – were not successful. Dialogue, good communication strategy, and eventually consensus, with teacher unions, local administrators and other key stakeholders could have made a difference. 25  Clarity of M&E roles and linkages of M&E to policy development should be ensured. The Bank should provide a clear design and continuous technical support on the M&E practice. On the design, it should ensure clarity in the respective roles and responsibilities for internal and external M&E and the linkage of M&E to policy and strategy development, and to the need for capacity building and institutional strengthening in technical aspects of M&E. The Bank should also monitor and advise that M&E results (policy analyses) be systematically incorporated into policy development by suggesting the right sequencing and the timeliness of studies and surveys.  Capacity Building. Knowledge of Bank procedures cannot be underestimated when looking at elements of success of an investment project. Training on Bank operations is necessary for counterpart staff and critical for new staff, and this applies to procurement as well as financial management. Governments need to be aware of this when they appoint Project Coordinators. Acknowledging the different skills needed for following procurement procedures for civil works, equipment and consultancy services are critical in education projects.  Raising learning outcomes in disadvantaged areas is a challenge that developed and developing countries face nowadays in a context of nearly universal primary and secondary education. The successful experience of the PEPE schools in Tunisia, using a Charter Schools model, is definitely an important success story and therefore an important lesson for other countries in the region and beyond.  Project Implementation and Procurement. Procurement delays were due to several factors – some inherent to the country procurement system and procedures and some due to the capacity and skills in the implementing agency. The latter reason requires that the necessary resources (human and physical) should be identified from the outset -- to ensure smooth project procurement processing -- and that their skills and knowledge of Bank procedures should be assessed so that they can be adequately trained. On the country overall procurement practices, this requires a longer haul effort of dialogue with the country to reach agreement on the improvements to bring to the national review system and to their procedures to allow better alignment with internationally accepted practices. A provisional way forward in this regard is to have Bank financing focused on as many ICB procurements as possible, as there is less Government intervention when this is the case.  School Rehabilitation: Many cases where rehabilitation was required were due to the lack of proper maintenance over long periods of time. So far, maintenance budget allocations at the institutional level are very low. Therefore, it is necessary to (i) increase and decentralize the budget for school maintenance, (ii) decentralize its implementation, (iii) have maintenance become a programmatic 26 activity fully integrated in the institution’s life and (iv) have staff adequately trained and provided to institutions, and routines established. In addition, and as importantly, students and parents should be sensitized to the values of maintaining the integrity of the public assets. 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners (a) Borrower/implementing agencies By the time of the ICR review meeting – March 15, 2011 – and despite several reminders sent by the Bank Task Team, the Borrower had only sent to the Bank a few minor edits to the French version of the draft ICR. The review meeting agreed to send a final reminder setting March 21 as the final deadline to receive extended comments and feed-back to the draft ICR. (b) Cofinanciers (c) Other partners and stakeholders (e.g. NGOs/private sector/civil society) N/A 27 Annex 1. Project Costs and Financing (a) Project Cost by Component (in USD Million equivalent) Appraisal Actual/Latest Percentage of Components Estimate (USD Estimate (USD Appraisal millions) millions) A/ INCLUSIVE BASIC 12.50 16.81 135% EDUCATION A1 TEACHING FOR IMPROVED 8.70 9.64 111% LEARNING OUTCOMES A2 EQUAL SCHOOLING 3.80 7.17 189% OPPORTUNITIES B/ DIVERSITY IN SECONDARY 5.66 6.24 110% EDUCATION B1 DIVERSIFYING THE SECONDARY EDUCATION 5.60 5.49 98% CURRICULUM B2 CAREER INFORMATION 0.06 0.75 1248% AND GUIDANCE C/ SCHOOL SECTOR 0.58 0.14 23% MANAGEMENT C1 SCHOOL-LEVEL 0.08 0.07 93% MANAGEMENT C2 SYSTEM-LEVEL 0.50 0.06 12% MANAGEMENT D STRENGHTENING CORE 111.60 106.55 95% SYSTEMS D1 STAFF TRAINING AND 1.00 0.12 12% COMMUNICATIONS D2 INFORMATION AND COMMUNICATION 16.00 22.05 138% TECHNOLOGIES D3 ASSESSMENT AND 0.60 0.93 155% EVALUATION D4 SCHOOL INFRASTRUCTURE 94.00 83.44 89% Total Baseline Cost 130.34 129.73 99.5% Physical Contingencies 0.00 0.00 0.00 Price Contingencies 0.00 0.00 0.00 Total Project Costs 130.34 129.72 99.5% Front-end fee PPF 0.00 0.00 .00 Front-end fee IBRD 0.00 0.00 .00 Total Financing Required 130.34 129.72 99.5% 28 (b) Financing Appraisal Actual/Latest Type of Estimate Estimate Percentage of Source of Funds Cofinancing (USD (USD Appraisal millions) millions) Borrower 160.58 82.79 51.6% International Bank for Reconstruction 130.34 129.72 99.5% and Development 29 Annex 2. Outputs by Component EQIP II Component A:  Component B: Component C: Component D: Inclusive Basic  Diversity in  School Sector  Strengthening Core  Education Secondary Education  Management Systems A1: Teaching for  B1: Diversifying the  C1: School�Level  D1: Staff Training and  Improved Learning  Secondary Education  Management Communication Outcomes Curriculum B2: Career  D2: Information and  A2:Equal Schooling  C2: System�Level  Information and  Communication  Opportunities Management Guidance Technologies D3: Assessment and  Evaluation D4: School  Infrastructure Component A. Inclusive Basic Education: actual disbursement USD16.81 million, originally estimated cost USD 12.50 million (134% of the originally estimated cost) This component had two subcomponents: Teaching for Improved Learning Outcomes, and providing Equal Schooling Opportunities for children in disadvantaged areas and with disabilities. The overwhelming majority of the activities planned under this component were fully implemented. Under the first subcomponent, technical support was provided to MET to develop textbooks and teaching materials to introduce the “Approche par Competences� in all schools. This was coupled with training for trainers, principals and teachers on the definition of competences. The training was carried out in 10 modules. In total 1,000 trainers were trained by CENAFFE; including 800 principals and 42,542 teachers. In addition, schools received equipment to facilitate and improve teachers´ pedagogical interaction with students; equipment included 1,940 Copy machines, audio-visual equipment provided to primary schools and colleges, 250 overhead projectors and 2,500 CD and tape players. 30 Equipment for teaching science in primary school classrooms was provided for 280 laboratories, including optical observation equipment, optical and mechanical equipment, electrical equipment, chemistry equipment, anatomy, wallboard and models; 24 language laboratories were provided for CREFOC and one for CENAFFE for training and upgrading English teachers in primary schools. Concerning inclusive education and provision of equal opportunities, the PEPE program, by 2009, was brought to 557 primary schools and 101 colleges (lower secondary schools), expanding the number of pupils benefitting from 7,667 in 2001/2002 to 157,806 by the project closing date. PEPE schools benefitted from additional resources, managed directly by the school council, through a special fund of US$500 (650 DT), designed allocated based on presentation of school improvement plans. In addition, these schools received training for their teachers, heads, trainers and technicians, increased the number of school hours, and introduced supervision after class hours, social support to children with special needs, generalization of canteens, and monitoring and evaluation of schools by the coordination unit of the PEPE program. In addition, 118 PEPE schools, 25 colleges and 15 boarding schools were rehabilitated, while 69 schools received equipment for canteens, and two colleges received a complete kitchen. To address the needs of young children from low-income areas, kindergartens for 1450 children were rehabilitated and equipped. Further, for the integration of children with disabilities, a program in 336 schools was completed, integrating 1219 children with hearing, visual, motor and mental handicaps. An extensive training program for teachers and school heads was developed, and 2500 guidelines on how to integrate children with the different disabilities were produced and disseminated nationwide. In addition, rehabilitation of school infrastructure to facilitate access was completed. Component B. Diversity in Secondary Education: actual disbursement USD 6.24 million, originally estimated cost USD 5.66 million (actual disbursement: 110% of the originally estimated cost) This component had two sub components: Diversifying the Secondary Education Curriculum, and Career Information and Guidance. Under this component, technical assistance was provided to identify ways to implement new technological options in secondary schools, as well as for an evaluation of all scientific and technical equipment used in colleges and lycées. Secondary schools benefitted from science textbooks, language books, philosophy, physics and economy. To facilitate career counseling and guidance services, an Information and Guidance Center “CRIO’ was created, which developed a database on alternative and available options regarding university study opportunities as well as TVET, and other training and career options; 1016 teachers were trained on how to use CRIO. Technical assistance was also provided to build a website aimed at disseminating school counseling information at the 24 CREFOC. 31 Component C. School Sector Management: actual disbursement USD 0.14 million, originally estimated cost USD 0.58 million (actual disbursement: 22% of the originally estimated cost). This component had two sub-components: School-Level Management, and System-Level Management. The objective of this component was to extend a decentralized and modern management system to schools and institutions, including setting up School Improvement Schemes in schools and Regional Improvement Schemes in Regional MET Offices. A program of support (advice, training and support) was developed for schools which interested in implementing a quality control system (50 schools); however, a wider generalization of the activity supporting the preparation of School Improvement Plans and the setting up School Councils was finally not viable and therefore not implemented. This was in part due to lack of support from Teacher Unions, and in part due to the political and cultural context in Tunisia, which made the promotion of school autonomy very difficult as an overall education policy goal. CENAFE was the institution that took the lead on implementing this ‘quality enhancement program� and was effective in training trainers and counselors and in developing a network of coordinators in quality assessment in a number of schools that were interested in participating in this effort. However, as stated above, only a minority of schools were involved. Regarding system-level management, the use of ICT tools to improve management was generalized: EduServ software was installed in all schools and technical assistance was provided; a secured virtual and administrative network in schools and regional offices Edunet was operational. All 2,236 EduServ users and administrative managers and 1,049 technical staff to use ICT were trained. In addition, five project managers were trained abroad to strengthen project monitoring. Component D. Strengthening Core Systems and Infrastructure: actual disbursement USD106.55 million, originally estimated cost USD 111.60 million (actual disbursement: 95% of the originally estimated cost) This component was composed of four sub-components underlined below. Staff Training and Communications: A strategic study was carried out in order to modernize and decentralize teacher training and to design an in-service training system. This was implemented by CENAFFE. In addition, audio-visual equipment and copy machines, IT rooms, PCs and other IT equipment were provided to the 24 CREFOC and to CENAFFE, together with textbooks for CREFOC and CENAFFE’s teachers’ and trainers on teaching selected subjects (62 language books, 6 for philosophy teaching, 10 for physics teaching, 3 for economy teaching). Also in terms of equipment, 30 buses were purchased to assist schools in organizing school visits to archaeological sites, and 25 service cars for boarding schools in 25 Regional Offices. Finally, professional pre-service training for school supervisors was given every summer with participation of 2,200 in each session. However, the projected communication strategy covering the main themes of school reform was not fully carried out. This was an important activity aimed at enabling all key implementation tools for the reform, and it comprised the creation of a communication office within the Ministry of Education. 32 Introducing Information and Communication Technologies: Technical assistance was provided for the integration of ICTs in the teaching and learning process. A training program was offered to ensure that teachers master the use of ICTs in the classroom, which also contributed to strengthening distance learning and training platforms. Through this program, 100 regional trainers and 25 trainers of trainers benefitted from specialized courses in Canada. More importantly, an ICT certification system for teachers was introduced. This component also strengthened the information system infrastructure and networking capabilities: The EduNet network was extended at the regional level with more education and cultural sites developed and launched. Moreover, 800 foreign language laboratories, 300 IT laboratories, and 15 Internet mini-vans were provided to schools. The component financed the upgrading and decentralization of INBMI services to better respond to schools’ requirements by providing pedagogical services with some equipment, and the regional technical services of the INBMI with 5 vehicles and equipment for 7 IT rooms. A distance learning and training system was established, which entailed strengthening distance learning and training platforms by providing technical assistance to diversify the range of distance learning and tutoring services. In order to monitor and evaluate the activities offered by “virtual schools�, a study was carried out - “Ecole Virtuelle Tunisienne� (EVT) – including a set of 15 recommendations. Assessment and Evaluation: Regular national assessments were organized and managed by implementing the assessment test item bank already available and by establishing a system for analyzing and interpreting the results, partly launched under EQIP I. On international student assessment, the Project supported Tunisia´s participation in PISA and TIMSS, making the country one of the very few in the region that is involved in these two major international studies. This component also modernized the Education Research Center Library (CNIPRE) by updating the library database, and upgrading the resource center with the use of new software. Pedagogical publications aimed at practitioners and communities were also supported, especially ‘Kifayat�. On the other hand, the activities related to promoting education research and innovation through participation in international meetings were only partially successful due to the high turnover of young researchers within the Ministry. School Infrastructure: Up to 771 primary schools and 331 colleges were renovated under this subcomponent and 200 multipurpose classrooms were built in 200 primary schools in 2005/2006. The Project increased infrastructure capacity in schools by building and equipping new secondary schools and by equipping science and technology classrooms in existing colleges: 33 secondary schools were built, and 230 physical science laboratories, 70 biology laboratories, 90 technical education laboratories and 90 history and geography laboratories and 225 photocopying machines were financed. In secondary education, 36 new lycées and 2 boarding schools were built and equipped, which included a total of 600 classrooms, and 150 specialized classrooms in science and technology and 207 boarding facilities in existing schools. The subcomponent also equipped science and technology classrooms in existing lycées with 10 technical laboratories, 60 physical science laboratories, 85 natural science laboratories, 65 history and geography laboratories and 65 technological laboratories. 33 Finally, a program of maintenance and rehabilitation for 771 primary schools, 33 secondary schools and 27 lycees was implemented. 34 Annex 3. Bank Lending and Implementation Support/Supervision Processes (a) Task Team members Responsibility/ Names Title Unit Specialty Lending Mohamed Arbi Ben-Achour Lead Social Development Specialist AFTCS Dominique Bichara Special Rep. to The United Nat EXTUN Hocine Chalal Regional Safeguards Adviser MNACS Rafika Chaouali Lead Financial Management Spec OPCFM Hassine Hedda Finance Officer CTRDM Hovsep M. Melkonian Consultant WBGSA Karine M. Pezzani Operations Analyst MNSHE Alexander B. Velderman Consultant LCSDE Jeffrey Waite Lead Education Specialist MNSHE Michel J. Welmond Lead Education Specialist AFTED L. S. Christine Wong Shui Operations Analyst EASPR Wan Hafedh Zaafrane Consultant AFTED Supervision/ICR Slaheddine Ben-Halima Consultant AFTED AFTH3 - Ahmed Chabchoub Consultant HIS Antonio J. Cittati Consultant OPCFC Daniel R. Dupety Consultant MNSHD Emma Paulette Etori Language Program Assistant MNSHD Hiromichi Katayama E T Consultant MNSHE Roger V. Key Consultant MNSHD Rie Kijima Consultant EASHD Andre Kwak Consultant MNSHD Jacques L'Ecuyer Consultant AFTED Moez Makhlouf Consultant MNAFM Alaleh Motamedi Senior Procurement Specialist OPCPR Antoun F. Moussa Consultant QAG Karine M. Pezzani Operations Analyst MNSHE Dung-Kim Pham Operations Officer AFTED Amadou Tidiane Toure Lead Procurement Specialist SARPS Jeffrey Waite Lead Education Specialist MNSHE Hafedh Zaafrane Consultant AFTED Aglaia Zafeirakou Consultant LCSHE 35 (b) Staff Time and Cost Staff Time and Cost (Bank Budget Only) Stage of Project Cycle USD Thousands (including No. of staff weeks travel and consultant costs) Lending FY04 49 295.80 FY05 13 43.22 FY06 0.00 FY07 0.00 FY08 0.00 Total: 62 339.02 Supervision/ICR FY04 4.77 FY05 2 31.38 FY06 15 62.51 FY07 29 174.82 FY08 17 98.25 FY09 8 0.00 Total: 71 371.73 36 Annex 4. Summary of Borrower's ICR and/or Comments on Draft ICR The Borrower submitted an Implementation Completion Report with a review of the implementation and achievements obtained throughout the project life, as well as comments on the Bank’s Ratings for the ICR. Below is a summary. Project Indicators The measures taken by the Government to provide free education for all students aged 6- 16 have allowed Tunisia to reach nearly universal access to basic education. In addition, the recent efforts to include one year of pre-school education in public and primary schools have resulted in an increased enrollment rate in pre-school from 11% in 2001 to 77% in 2009-2010. This effort has been done giving priority in rural areas, where private pre-school is harder to be delivered. The number of students enrolled in primary education has been stable since 1995, and the teacher student ratio has improved from 25 to 22. Important efforts have been made to deploy teachers in rural areas where the average teacher student ratio is now 18. In Upper basic total numbers have started to decrease in 2009. Class sizes have been reduced from 32 to 26. This has been achieved due to the new school construction. Student enrollments in secondary have been increasing due to the increased completion rates in primary. The number of classrooms has increased, with 2714 new classrooms, allowing also decreasing class size from 32 to 26. In addition important efforts have been made to equip classrooms and laboratories with IT equipment. Évolution du pourcentage des enfants 5- 6 ans ayant accédé Évolution de l'effectif des élèves de l’enseignement secondaire à l'année préparatoire 90% 600 541 77.5% 509 504 502 517 80% 72.2% 493 496 67.7% 500 459 70% 65.3% 424 60% 400 50% 300 40% 30% 200 20% 11.3% 100 10% 0% 0 2001/02 2006/07 2007/08 2008/09 2009/10 2002 2003 2004 2005 2006 2007 2008 2009 2010 (1000) 37 Project Development Indicators The PDO have been fully accomplished and have clearly contributed to the improvement of quality of education in Tunisia. Completion rates in primary went from 51% in 2004 to 60% in 2010. However in secondary they have stagnated. Regarding the overall management of the sector, the increase in non operational expenditures for primary went from 2.7% to 3.2% between 2004- 2010. In secondary there was a decrease from 6.4% to 4.5% due to the efforts in reducing the teacher student ratio, which increased the total amount of salary allocations. The project allowed important developments concerning the use of ICT to improve the management of the system, modernize the schools and allowed students and teachers to use computers and communication technologies for teaching and learning. The ratio of student per computer went from 129 to 23 in primary, way beyond the targets set by the project; and from 99 to 23 in upper secondary, higher than the target of 69. The same was observed in secondary, moving from 45 to 19. Project Components The majority of the activities envisaged in the project design were completed as described in Annex 2. Conclusions and perspectives of working with the World Bank It is clear from the implementation reports that the project objectives have been fully met. The project has clearly contributed to the improvement of quality of education and the indicators have evolved in the right direction for all levels of education due to all the investments made through the project. Through the implementation of the project and the supervision of the Bank, as well as the weaknesses identified during the preparation of the XIth development plan, the Ministry of Education has identified some priority actions and areas in which would like to continue its dialogue and support from the World Bank. These are: i) Improvement of the management of the system through and implementation of a global information system; ii) enhancement of technical education; iii) enhancement of foreign language education; iii) continue with the decentralization efforts; and iv consolidate the use of ICT for teaching and learning. Comments from the Borrower regarding the ratings of the ICR As stated above, it is clear that throughout the project supervision reports that the PDO were fully met and that the project results are satisfactory. The indicators have evolved in a positive way, and this is due among other things- to the good management practice and institutional capacity developed over the years. This in effect has been the case for the many units and departments that have been involved in the implementation of the project, at the central, regional and local levels and it includes procurement, civil works, consultancy services and monitoring and evaluation of the activities funded through the project. In this context it is important to underscore that the rating that the Bank has given the borrower is Moderately Unsatisfactory. The Ministry of Education considers that the performance of the borrower has been Moderately Satisfactory. 38 Annex 5. List of Supporting Documents � Loan Agreement: o Loan Agreement between Republic of Tunisia and International Bank for Reconstruction and Development, March 12, 2004, Loan Number 7220- TUN � Project Appraisal Document: o Project Appraisal Document on a Proposed Adaptable Program Loan on the Amount of EUR 104.4 Million (US$ 130.3 Million equivalent) to the Republic of Tunisia for a Tunisia Education Project in support of the Second Phase of the Education Quality Improvement Program (EQIP), January 23, 2004, Report Number 26869-TUN; o Project Appraisal Document on a Proposed Loan in the Amount of US$99 Million to the Republic of Tunisia for the First Phase of the Education Quality Improvement Program (EQIP), May 30, 2000, Report Number 20467-TUN � Aide-Mémoires: o Aide-Mémoire, 4-14 November 2010 o Aide-Mémoire, 5-10 July 2010 o Aide-Mémoire, 16-23 November 2009 o Aide-Mémoire, 11-15 May 2009 o Aide-Mémoire, 1-5 December 2008 o Aide-Mémoire, 20-30 May 2008 o Aide-Mémoire, 3-18 September 2007 o Aide-Mémoire, 2-19 October 2006 o Aide-Mémoire Gestion Financière, October 2009 o Aide-Mémoire Gestion Financière, November 2008 o Aide-Mémoire Gestion Financière, September 2007 o Aide-Mémoire Gestion Financière, October 2006 � Project Paper: o Project Paper on a proposed second reallocation of loan proceeds and second extension of closing date of the Education Quality Improvement Project Phase II, September 29, 2009, Report number 56346 � Implementation Status and Results Reports: o 23 September 2010 o 26 May 2010 o 30 December 2009 o 26 June 2009 39 o 21 December 2008 o 28 June 2008 o 2 November 2007 o 19 June 2007 o 27 December 2006 o 22 July 2006 o 16 December 2005 o 18 February 2005 o 12 July 2004 � Implementation Completion and Results Report: o Implementation Completion and Results Report for a Loan in the Amount of US 99.0 Million to the Republic of Tunisia for the First Phase of the Education Quality Improvement Program (EQIP I), March 27, 2007 � Reports from the Ministry of Education: o Rapport sur le Programme des Ecoles à Priorités Educatives (PEPE) o Étude de l’impact du programme d’Éducation Prioritaire sur les performances scolaires, Unicef, CNIPRE, 2007 o Rapport sur l’intégration des enfants porteurs de handicap dans les classes ordinaires o Projet d’amélioration de la qualité du système éducatif tunisien, June 2010 o Etat d’avancement du projet « Extension de l’application EduServ », July 3, 2010 o Rapport semestriel de suivi, April 2010 o Rapport semestriel de suivi, October 2009 o Rapport annuel de suivi, July 2008 o Rapport annuel de suivi, July 2007 Consultants Reports Date d’achèvement Bureau d’étude Suivi/Commentaires A : Inclusion dans l’enseignement de base A1 : Pédagogie de la réussite Juin 2010 Ministère de l’Education, Rapport sur l’Intégration des enfants Direction Générale du porteurs d’un handicap dans les classes Premier Cycle ordinaires Rapport sur les résultats de la subvention des 650DNT non effectué Evaluation d’impact à nous fournir DGPFC / Tecsult Canada Janvier 2008 A1.1-3 Accompagnement 40 méthodologique des équipes chargées d'élaborer les programmes scolaires, les manuels et les outils didactiques du 2ème cycle de l'enseignement de base (7éme, Sème et 9ème années) et la définition d'un système d'évaluation des acquis des élèves s'inscrivant dans une démarche d'évaluation formative CENAFFE / Mediacom Formation A1.9 Renforcement de la formation des Mai 2007 enseignants de l'enseignement de base dans les langues et les sciences Ministère de l’Education Rapport sur le Programme des Ecoles à A2 : Egalité des chances Juin 2010 Priorité Educative (PEPE) DGEB1 / Mediacom Etude à établir en décembre 2010 sur les Formation écoles PEPE A2.1 La mise en œuvre d'une stratégie Mai 2008 d'information et de communication au profit des intervenants et des bénéficiaires du programme d'intégration DGEB2ES / Tecsult progressive des enfants porteurs de Canada handicap dans les établissements scolaires ordinaires A2.5 Identification des établissements Avril 2006 Secondaires concernées par la Mise au point d'une Stratégie de Mise à Niveau (Programme PEPE) B : Développement de l’enseignement secondaire B1 : Diversification des filières Nouveaux manuels scolaires à fournir Septembre 2007 DGPFC / Concept B1.1-2 Assistance technique à la mise en Tunisie place d'une filière technologique dans l'enseignement secondaire Mai 2006 DGPFC / Sofeg Canada B1.5 Évaluation de l'utilisation des équipements scientifiques et techniques dans les Collèges et les Lycées Mai 2006 DGEB2ES / Pro-Invest B2.1.1 Expertise pour la constitution B2 : Information et orientation Tunisie d'une banque de données sur les parcours des élèves scolaires, universitaires et de formation et sur les métiers, dans le cadre de la mise en place du centre des ressources, d'information et d'orientation (CR10) B2.2 Conception et la mise en place d'un Septembre 2010 DGEB2ES / ST2i Tunisie Site Web (Arabe/Français) pour la 41 collecte et la diffusion de l’information et de l'orientation scolaire C: Gestion du secteur scolaire C 1 : Gestion de l’établissement Juin 2010 Ministère de l’Education, Rapport de synthèse préparé par le scolaire Mr le Directeur Général du CNIPRE premier cycle et Mr le Directeur Général du deuxième cycle et de l’Enseignement de Base CENAFEE / GIP France Février 2007 C1.2 Instauration d'une Démarche Qualité dans les établissements INBMI / Pro-Invest Scolaires Tunisie C2 : Gestion du système scolaire 2010 3 guides écrits mais pas encore diffusés C.2.1 Développement de l'Extension du Juin 2010 Logiciel de Gestion de la Scolarité et des Moyens Pédagogiques dans les établissements scolaires "EUSERV" dans un Environnement Open Source D: Renforcement des dispositifs de base D1 : Formation et communication 2006 CENAFFE Etude stratégique réalisée, copie à nous fournir Janvier 2010 CENAFFE « Elaboration d’un dispositif et des outils de gestion du suivi et des outils d’évaluation de la formation continue » (D.1.1.C) Juin 2006 DGPFC / Cide Canada D1.1a Étude stratégique sur le développement du système de formation continue des personnels de l'éducation DGPFC / Consord Mars 2010 Tunisie D1.1c Renforcement de la capacité d’évaluation des programmes et de formation continue INBMI D2 : Technologies de l’information et Juillet 2010 Rapport concernant la mise en place de la communication d’un système pour la certification des compétences des élèves en TIC à nous fournir (D2.1) 42 INBMI / Pro-Invest Février 2010 Tunisie D2.1 Développement de l'intégration des TIC dans le processus d'apprentissage INBMI et CENAFEE / Décembre 2009 Pro-Invest Tunisie D2.2 Formation des formateurs en TIC INBMI / ST2i Tunisie Septembre 2010 D2.3c Amélioration des services du INBMI / ST2i Tunisie portail Edunet Septembre 2009 D2.4b Portage et l'Amélioration de la plateforme d'Enseignement à distance de l'école virtuelle dans un CNIPRE / Concept environnement open source Mars 2003 Tunisie CNIPRE / Concept D3 : Evaluation Mai 2006 Tunisie D3.1 Opérationnaliser la Banque de tests et d'épreuves dévaluation D3.3 La mise en place d'un Observatoire de l’innovation pédagogique D4 : Infrastructure Etat d’avancement du projet « Extension de l’application EDUSERV » Autres Unité de Gestion Financière Manuel de procédures utilisé par UGP à fournir Mr Ksiaa 2010 Rapport annuel de suivi UGP Rapport audit de juillet 2009 à fournir 43 IBRD 33500R 38°N 8°E 10°E 12°E Sicily This map was produced by the Map Design Unit of The World Bank. M e d iterranean Sea The boundaries, colors, denominations and any other information shown on this map do not imply, on the part of The World Bank (ITALY) Group, any judgment on the legal status of any territory, or any La Galite St endorsement or acceptance of such boundaries. ra it Bizerte of BIZE RT BIZ ERT BIZERT E Gulf of Tunis Tabarka . Si s Mts ARIANA L'Ariana ci ly To Algiers Atla TUNIS Pantelleria Beja NABEUL (ITALY) JENDOUBA Ben Arous To Jendouba BE JA BEJ A BEN AROUS Sétif Nabeul ue Zaghouan eg ell ZAGHOUAN M SIL IANA Gulf of Hammamet 36°N Le Kef Siliana 36°N Isole Pelagie KE LE KEF SOUSSE (ITALY) Sousse To Sétif Kairouan Monastir Thala MONASTIR Lampedusa KAIROUAN (ITALY) KASSERINE ud Mahdia El ro MAHDIA Ze ALGERIA Ha teb El Djem Jabal ash Shanabi (1544 m) Kasserine Sidi Bou Zid SIDI BOU SFAX ZID Sfax Kerkenna GAFSA Maharès Islands Mediterr an e an Gafsa Sea Skhira Gulf of 34°N Gabes 34°N Tozeur Houmt Souk Gabes TOZEUR El Hamma Djerba Chott el Jerid Island To Kebili GABES Touggourt Zarzis MEDENINE Medenine KEBILI Tataouine To Al -Ji Tripoli far 0 25 50 75 100 Kilometers ah Pla TATAOUINE in 0 25 50 75 Miles Remada L I B YA g Er 32°N n ter Dehibat To s Mizdah 8°E Ea t ea Gr El Borma TUN I S I A To Dirj SELECTED CITIES AND TOWNS GOVERNORATE CAPITALS NATIONAL CAPITAL RIVERS TUNISIA MAIN ROADS RAILROADS GOVERNORATE BOUNDARIES INTERNATIONAL BOUNDARIES 30°N 10°E JANUARY 2007