Document of The World Bank Report No: ICR2938 IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA-H1270 IDA-H4870) ON A CREDIT IN THE AMOUNT OF SDR 23.9 MILLION (US$ 35 MILLION EQUIVALENT) TO THE REPUBLIC OF CONGO FOR A SUPPORT TO BASIC EDUCATION PROJECT (PRAEBASE) March 31, 2014 Education Sector Unit for West and Central Africa (AFTEW) Country Department AFCC2 Africa Region CURRENCY EQUIVALENTS (Exchange Rate Effective March 25, 2014) Currency Unit = CFAF US$ 1.00 = 475 CFAF FISCAL YEAR January 1 – December 31 ABBREVIATIONS AND ACRONYMS AF Additional Financing AfD Agence Française de Devéloppement/French Development Agency CAS Country Assistance Strategy DDEPSA Direction Départementale de l’Éducation Primaire et Secondaire chargé de l’Alphabétisation/Regional Department for Primary and Secondary Education and Literacy DGA Development Grant Agreement EFA-FTI Education for All-Fast Track Initiative EFA FTI CF Education for All-Fast Track Initiative Catalytic Fund EMIS Education Management and Information System ESMF Environmental and Social Management Framework FA Fiduciary Agency FM Financial Management GDP Gross Domestic Product GER Gross Enrolment Rate GPE Global Partnership for Education ICR Implementation Completion and Results Report ICT Information and Communication Technology IDA International Development Association IGA Income Generating Activity IGEPSA Inspection Général de l’Enseignement Primaire, Secondaire et Alphabétisation/General Inspection for Primary, Secondary Education and Literacy IMF International Monetary Fund INRAP L'Institut National de Recherche et d'Action Pédagogique / National Institute for Research and Pedagogical Action IP Implementation progress IPP Indigenous Peoples Plan I-PRSP Interim Poverty Reduction Strategy Paper IRA Income Revenue Activity IRS Implementation Status Report GOC Government of Congo i M&E Monitoring and Evaluation MEPSA Ministère de l’Enseignment Primaire, Secondaire et Alphabétisation/Ministry of Primary, Secondary Education and Literacy MES Ministère de l’Enseignement Supérieur/Ministry of Higher Education METPFQE Ministère de l’Enseignement Technique, Professionnel, de la Formation Qualifiante et de l’Emploi/Ministry of Technical and Professional Education, Qualifying Training and Employment MTR Mid-Term Review NGO Non-governmental organization PAD Project Appraisal Document PCU Project Coordination Unit PDO Project Development Objective PER Public Expenditure Review PP Project Paper PPF Project Preparation Facility PRAEBASE Projet d’Appui a l’enseignement de base/Support to Basic Education Project PSR Project Status Report QER Quality Enhancement Review RF Results Framework SIP School Improvement Plan SMC School Management Committee SSP Small School Project ROC Republic of Congo TSS Transition Support Strategy UNDP United Nations Development Program UNESCO United Nations Education, Scientific and Cultural Organization UNICEF United Nations Children’s Fund WB The World Bank Vice President: Makhtar Diop Country Director: Eustache Ouayoro Sector Manager: Peter Materu Project Team Leader: Cristina Isabel Panasco Santos ICR Team Leader: Cristina Isabel Panasco Santos ii The Republic of Congo Support to Basic Education Project CONTENTS Data Sheet A. Basic Information B. Key Dates C. Ratings Summary D. Sector and Theme Codes E. Bank Staff F. Results Framework Analysis G. Ratings of Project Performance in ISRs H. Restructuring I. Disbursement Graph 1. Project Context, Development Objectives and Design ............................................... 1 2. Key Factors Affecting Implementation and Outcomes .............................................. 8 3. Assessment of Outcomes .......................................................................................... 14 4. Assessment of Risk to Development Outcome......................................................... 20 5. Assessment of Bank and Borrower Performance ..................................................... 21 6. Lessons Learned ....................................................................................................... 23 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners .......... 23 Annex 1. Project Costs and Financing .......................................................................... 24 Annex 2. Outputs by Component ................................................................................. 25 Annex 3. Economic and Financial Analysis ................................................................. 38 Annex 4. Bank Lending and Implementation Support/Supervision Processes ............ 48 Annex 5. Summary of Borrower's ICR and/or Comments on Draft ICR ..................... 50 Annex 6. List of Supporting Documents ...................................................................... 60 MAP iii Republic of Congo Support to Basic Education DATA SHEET A. Basic Information Republic of Congo Country: Congo, Republic of Project Name: Support to Basic Education Project Project ID: P084317 L/C/TF Number(s): IDA-H1270,IDA-H4870 ICR Date: 03/30/2014 ICR Type: Core ICR GOVERNMENT OF Lending Instrument: SIL Borrower: THE REPUBLIC OF CONGO Original Total XDR 13.80M Disbursed Amount: XDR 23.18M Commitment: Revised Amount: XDR 23.18M Environmental Category: B Implementing Agencies: Ministère de l’Enseignment Primaire, Secondaire et Alphabétisation Cofinanciers and Other External Partners: Ministere des Finances, du Budget et du Portefeuille Public B. Key Dates Revised / Actual Process Date Process Original Date Date(s) Concept Review: 01/21/2004 Effectiveness: 03/25/2005 03/25/2005 Appraisal: 06/14/2004 Restructuring(s): 06/09/2009 Approval: 09/23/2004 Mid-term Review: 06/20/2011 07/22/2011 Closing: 12/31/2008 06/30/2013 C. Ratings Summary C.1 Performance Rating by ICR Outcomes: Moderately Satisfactory Risk to Development Outcome: Substantial Bank Performance: Moderately Satisfactory Borrower Performance: Moderately Satisfactory iv C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings Moderately Quality at Entry: Government: Moderately Satisfactory Unsatisfactory Implementing Moderately Quality of Supervision: Moderately Satisfactory Agency/Agencies: Unsatisfactory Overall Bank Overall Borrower Moderately Satisfactory Moderately Satisfactory Performance: Performance: C.3 Quality at Entry and Implementation Performance Indicators Implementation QAG Assessments (if Indicators Rating Performance any) Potential Problem Project Quality at Entry Yes Satisfactory at any time (Yes/No): (QEA): Problem Project at any Quality of Supervision No None time (Yes/No): (QSA): DO rating before Moderately Closing/Inactive status: Satisfactory D. Sector and Theme Codes Original Actual Sector Code (as % of total Bank financing) Central government administration 10 10 Primary education 40 65 Secondary education 35 10 Sub-national government administration 10 10 Vocational training 5 5 Theme Code (as % of total Bank financing) Conflict prevention and post-conflict reconstruction 17 10 Decentralization 33 20 Education for all 33 55 Participation and civic engagement 17 15 E. Bank Staff Positions At ICR At Approval Vice President: Makhtar Diop Callisto E. Madavo Country Director: Eustache Ouayoro Emmanuel Mbi Sector Manager: Peter Nicolas Materu Laura Frigenti Project Team Leader: Cristina Isabel Panasco Santos Adriana Jaramillo v ICR Team Leader: Cristina Isabel Panasco Santos ICR Primary Author: Cristina Isabel Panasco Santos Bernardo da Cruz Vasconcellos Laura McDonald F. Results Framework Analysis Project Development Objectives (from Project Appraisal Document) From the Development Grant Agreement: The objectives of the Project are to support the Recipient's effort to improve the quality of basic education by: (a) increasing efficiency in allocation and management of budgetary resources earmarked for basic education, and (b) fostering equitable access to education services with emphasis on underserved areas, out of school youth, and other minority groups, such as Pygmies. From the Project Appraisal Document: The project development objectives are to improve efficiency in the allocation and management of resources, improve the quality of the education services offered, and reduce inequities in the provision of these services. In order to achieve these objectives, the proposed Project will pursue a three-fold agenda of action. 1) It builds the capacity of the Ministry of Primary and Secondary Education to prepare the system for decentralization, in particular providing support to the Regional Departments of Education (DDEPSA) to develop and monitor regional education plans, and strengthen their capacity to provide support to the school system. 2) It provides support for the improvement of the quality of education services offered by providing direct support to schools, through the implementation of a National School Improvement Program. And 3) it provides support to increase equity in the provision of services, by providing free textbooks, allocating resources based on a per capita formula, focusing rehabilitation efforts in underserved areas, and providing support to out of school youth and excluded population such as Pygmies. Revised Project Development Objectives (as approved by original approving authority) From the Development Grant Agreement: The objective of the Project is to improve efficiency, quality and equity in the provision of basic education in the territory of the Recipient with a view to achieving universal quality primary education by 2015. (a) PDO Indicator(s) Original Target Actual Value Formally Values (from Achieved at Indicator Baseline Value Revised approval Completion or Target Values documents) Target Years Indicator 1 : Primary education completion rate Value quantitative or 50% 70% 90% 79% Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was partially achieved. A significant increase in primary education vi (incl. % completion rate (72%) was observed during Project implementation. The indicator achievement) was in the PAD, the DGA for the Additional Financing (AF) and in the restructuring Project Paper. Indicator 2 : Student/teacher ratio Value quantitative or 92:1 70:1 56:1 57:1 Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was almost achieved. This indicator was in the DGA for both Original (incl. % Project and AF and in the restructuring Project Paper. achievement) Indicator 3 : Primary education repetition rate Value quantitative or 30% 20% 20% 22.87% Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments This indicator was partially achieved. This indicator was included in the DGA for the (incl. % Original Project, the Project Appraisal Document (PAD) and the restructuring Project achievement) Paper. Indicator 4 : Ratio administrative staff - teaching staff Value quantitative or 40 15 17 57 Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was not achieved. Indicator was included in the PAD and the Project (incl. % Papers for the AF and restructuring. achievement) Indicator 5 : The girl-boy primary school enrollment ratio Value quantitative or 0.91 0.95 0.95 0.96 Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was exceeded. This indicator was included in the DGA for the AF and the (incl. % restructuring Project Paper. achievement) Indicator 6 : Gross Enrollment Rate Value quantitative or 107% 114% 114% 116% Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was exceeded. This indicator was included in the PAD and the Project (incl. % Paper for the restructuring. achievement) Indicator 7 : The Regional Departments of Education have the capacity to produce annual plans. Value quantitative or No Yes No Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2009 vii Comments The target was not achieved. Although capacity increased, the DDEPSAs were never (incl. % able to produce and implement annual plans. Indicator was included in the PAD and achievement) measured during the Original Project. (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 Reliable statistical yearbooks based on school census produced and available annually Indicator 1 : (re-phrased as Regularity of annual statistics production with key sector indicators) Value (quantitative No Yes Yes Yes - Partially. or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was partially achieved. While education statistics were produced during (incl. % the lifetime of the project, there were delays in their production (which could never be achievement) rectified). This indicator was measured consistently during the life of the project. Number of additional classrooms built or rehabilitated at the primary level resulting Indicator 2 : from project interventions. Value (quantitative 0 600 960 916 or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was partially achieved. This indicator was measured consistently during the (incl. % life of the project although phrased in different ways. achievement) Indicator 3 : Number of primary teachers receiving in-service training Value (quantitative 0 4,000 6,000 9,141 or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was exceeded. This indicator was measured consistently during the life of (incl. % the project. achievement) Textbooks in Math, French, and Civic Education at primary level bought and Indicator 4 : distributed Value (quantitative 0 1.8 million 2.6 million 2.6 million or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was achieved. This indicator was measured consistently during the life of (incl. % the project. achievement) Textbooks in French and Mathematics at junior secondary level, bought and Indicator 5 : distributed Value 0 260,000 260,000 340,000 viii (quantitative or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was exceeded. This indicator was measured consistently during the life of (incl. % the project. achievement) Indicator 6 : Strategy for social inclusion and schooling for the indigenous children implemented Value (quantitative No Yes Yes Yes or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was achieved. The strategy is under implementation. This indicator was (incl. % measured consistently during the life of the project achievement) The percentage of out-of-school youth who are working in a new activity 6 months Indicator 7 : after finishing the programs is at least 50% Value (quantitative 0 60% 50% 62.10% or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was exceeded. In fact, it exceeded also the original target. This indicator (incl. % was measured consistently during the life of the project. achievement) Indicator 8 : Number of pygmy children enrolled in formal and non-formal education Value (quantitative 0 3,000 4,000 4,030 or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was exceeded. This indicator was measured consistently throughout the (incl. % life of the project. achievement) Number of out-of-school youth who have completed vocational training programs Indicator 9 : under the Project Value (quantitative 0 700 1,600 1,423 or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was partially achieved. This indicator was measured consistently during (incl. % the life of the project. achievement) Indicator 10 : Share of public expenditure in education (% of total expenditure) Value (quantitative 9.3% 16% 16% 11.78% or Qualitative) Date achieved 09/23/2004 12/31/2008 06/30/2013 06/30/2013 Comments The target was not achieved. There was, however, a positive trend. This indicator (incl. % was measured consistently during the life of the project. achievement) ix G. Ratings of Project Performance in ISRs Date ISR Actual Disbursements No. DO IP Archived (USD millions) 1 11/17/2004 Satisfactory Satisfactory 0.00 2 02/25/2005 Satisfactory Satisfactory 0.00 3 05/05/2005 Satisfactory Satisfactory 0.90 4 10/05/2005 Satisfactory Satisfactory 3.66 5 05/10/2006 Satisfactory Satisfactory 4.51 6 12/11/2006 Satisfactory Satisfactory 7.11 7 03/28/2007 Moderately Satisfactory Satisfactory 9.14 8 12/21/2007 Moderately Satisfactory Satisfactory 14.62 9 06/27/2008 Moderately Satisfactory Satisfactory 17.12 10 08/31/2008 Moderately Satisfactory Satisfactory 17.53 11 02/28/2009 Moderately Satisfactory Satisfactory 19.79 12 06/18/2009 Moderately Satisfactory Satisfactory 20.83 13 01/15/2010 Moderately Satisfactory Satisfactory 20.64 14 06/29/2010 Moderately Satisfactory Satisfactory 23.83 15 03/14/2011 Moderately Satisfactory Moderately Satisfactory 24.65 16 10/17/2011 Moderately Satisfactory Moderately Satisfactory 26.30 17 05/15/2012 Moderately Satisfactory Moderately Satisfactory 29.94 18 12/30/2012 Moderately Satisfactory Moderately Satisfactory 33.14 19 06/24/2013 Moderately Satisfactory Moderately Satisfactory 34.75 H. Restructuring (if any) ISR Ratings at Amount Board Restructuring Restructuring Disbursed at Reason for Restructuring & Approved PDO Date(s) Restructuring Key Changes Made Change DO IP in USD millions Extension of the closing date for one year to allow for completion 06/09/2009 N MS S 20.83 of activities under Component 2 and revision of the results framework. x I. Disbursement Profile xi 1. Project Context, Development Objectives and Design 1.1 Context at Appraisal 1. Country Context. At the time of appraisal, the Republic of Congo (ROC) was a post- conflict country with an estimated population of 3.2 million inhabitants, many of whom were living along the Brazzaville - Pointe Noire corridor. The population was relatively young with close to 65 percent under 24 years of age. ROC had gone through a cycle of civil wars that ended in March 17, 2003 with the signing of a peace agreement. As a result of the continued conflict, the economy was in disarray – with damaged infrastructure and collapsed social sectors. In 2000, 70 percent of the population lived below the poverty line, and 11 percent of the children in the country had been orphaned. Many of these children were no longer attending school – with primary education attendance dropping from 90 percent to 40 percent between 1990 and 2000. 2. Sector Context. The education sector had been deeply impacted by the continued conflict. Gross enrollment rates (GERs) had fallen significantly from 1995 to 1999, from 119, 64, and 25 percent for primary, lower, and upper secondary education to 57, 33 and 12 percent, respectively. Repetition rates were very high, especially at the primary level. In 2002, the repetition rate was 28 percent for grade 1 and 33 percent for grade 4. The education system was characterized by significant income, gender and regional disparities highlighting important issues of inequity. Spending on education (recurrent and capital) varied significantly during the conflict period amounting to an average of 3.2 percent of Gross Domestic Product (GDP) between 1996 and 2002 with notable year-by-year variations. Moreover, the education budget was also unevenly distributed among the various sub-sectors with higher education (having fewer than 2 percent of all students enrolled in the education system) benefiting from an allocation of 32 percent of the budget, compared to an allocation of 35 percent for primary education. The teacher management system was weak with a large number of ‘ghost’ teachers (teachers on payroll yet no longer in the system) and bénévoles (teachers hired by the communities). Furthermore, as of 2001 more than 40 percent of primary school teachers did not have any professional training. The student-teacher ratio was high (at 92 if only teachers recruited by the Government are included and at 74 if bénévoles and others are included). 3. Project Context. At the time of appraisal, the Government of the Republic of Congo (GOC) was committed to introducing the necessary changes to improve the quality of education delivery and the internal and external efficiency of the education system. In November 2002, the Ministry of Primary, Secondary Education and Literacy (Ministère de l’Enseignment Primaire, Secondaire et Alphabétisation – MEPSA) prepared an Education for All (EFA) Plan as suggested by the United Nations Education, Scientific and Cultural Organization (UNESCO), which laid the foundations for education reform. The main features of this reform were: (i) diversification and improvement of the education services offered; (ii) decentralization of management and service delivery; (iii) strengthening of partnerships around education focusing on civil society; (iv) improvements in quality of education; and (v) improvements in efficiency and transparency in education sector management. A decentralization law had been passed in 2003, giving the regional departments of education (or Regional Departments for Primary and Secondary Education and Literacy (Directions Départementales de l’Éducation Primaire et Secondaire et Chargé de l’Alphabétisation – DDPESAs)) the authority to participate in the preparation of school mapping, and responsibility for construction, equipment and management of pre-schools, primary and 1 secondary schools, and literacy centers. The establishment of units for school-based management (school management committees – SMCs) was made possible by a law that had been passed in 1996. 4. The Bank was supporting the GOC through the implementation of a Transitional Support Strategy (TSS) beginning in 2001. The TSS and the subsequent Interim Poverty Reduction Strategy Paper (I-PRSP, 2004-2006) paid particular attention to boosting social inclusion and strengthening the social sectors. The TSS emphasized the importance of rebuilding the education system which included a combination of substantial investments to rehabilitate destroyed facilities, capacity-building (particularly for teachers), and policy reforms to better manage available resources. Pillar 3 (Access to Basic Social Services and Social Welfare) of the I-PRSP emphasized the need to improve access to education. Therefore, at the time of appraisal there was a strong rationale for the Bank’s engagement in the education sector to support the GOC in reconstructing the education system, implementing reforms to improve the efficiency of the system, and improving the quality of education service delivery. 5. The World Bank-funded Support to Basic Education Project (P084317) (Projet d’Appui à l’enseignment de base – PRAEBASE) provided financial support and technical assistance (TA) to the GOC to: (i) rebuild the school network through rehabilitation and refurbishment of classrooms and other school infrastructure; (ii) strengthen MEPSA’s capacity at the central and local levels to plan and monitor education reform in a decentralized context, including the preparation and implementation of regional education plans, and the consolidation of SMCs; (iii) increase the availability of textbooks in primary and junior secondary schools, as well as increase the number of better qualified teachers; (iv) gain a better understanding of the characteristics of the teaching personnel and remove ‘ghost’ personnel from MEPSA’s budget; and (iv) implement training programs for out-of-school youth and promote increased enrollment among disadvantaged children. 1.2 Original Project Development Objectives (PDO) and Key Indicators 6. The original project development objectives (PDO) of the Project (PRAEBASE) as described in the Development Grant Agreement (DGA) were to support the Recipient’s effort to improve the quality of basic education by: (i) increasing efficiency in allocation and management of budgetary resources earmarked for basic education; and (ii) fostering equitable access to education services with emphasis on underserved areas, out-of-school youth, and other minority groups, such as pygmies. 1 7. There were some discrepancies between the DGA and the Project Appraisal Document (PAD) in terms of the PDO indicators. Indicators in the DGA were: (i) net entrance in last year of primary in rural and urban areas; (ii) primary repetition rates in rural and urban areas; (iii) teacher-pupil ratio; (iv) increased share of public expenditure on education; and (v) recurrent non-salary expenditures. Indicators in the PAD (Results Framework – RF) were: (i) percent of net entrance to last year in primary; (ii) primary education repetition rate; (iii) pupil-teacher ratio; (iv) administrative staff-to-teaching staff ratio in schools; and (v) capacity of regional departments of education (DDEPSAs) to develop and monitor annual department education plans. Indicators (iii) and (v) were disaggregated by region. From 2007 onwards, a consistent set of five PDO indicators were reported on in the status reports (initially Project Status 1 In the PAD, the PDO is “to improve efficiency in the allocation and management of resources, improve the quality of education services offered, and reduce inequities in the provision of the services.” 2 Reports (PSRs) and later Implementation Status Reports (ISRs)) The set of PDO indicators included: (i) primary completion rate; (ii) teacher student ratio; (iii) primary level average repetition rate; (iv) ratio of administrative personnel - teachers at the school level; and (v) regional departments of education have the capacity to produce annual education plans. 1.3 Revised PDO (as approved by original approving authority) and PDO Indicators, and reasons/justification 8. The original closing date of the Project was June 30, 2009. By early 2009, 97 percent of grant funds had been disbursed and implementation progress (IP) was rated Satisfactory. In order to allow for the scaling up of all Project activities and to support the development of an education sector plan within the framework of the Education for All – Fast Track Initiative (EFA-FTI), which the ROC intended to join, an Additional Financing (AF) (P113508) of US$15 million was approved on June 9, 2009. Under the AF, the wording of the PDO was slightly modified although the underlying objectives and goals of the project remain unchanged (i.e., to increase efficiency and improve quality and equity in basic education). The revised PDO as indicated in the AF Project Paper (PP) was “to improve efficiency, quality and equity in the provision of basic education in the Republic of Congo with a view to achieving universal quality primary education by 2015”. 9. The PDO indicators were revised accordingly. The revised set of PDO-level indicators as stated in the DGA for the AF 2 included: (i) primary education completion rate; (ii) the girl- boy primary school enrollment ratio; (iii) number of standardized tests administered; (iv) share of education expenditures as a total of government expenditures; (v) student teacher ratio (disaggregated by department); (vi) number of unqualified volunteers trained under the project; (vii) number of textbooks per student (disaggregated by subject and by primary and secondary level); (viii) number of Pygmy children enrolled in formal and non-formal education; and (ix) number of out-of-school youth who have completed vocational training programs under the Project. There was, however, some discrepancy between the indicators that were mentioned in the DGA and those that were specified in the PP. 3 10. Delays in the completion of the civil works program led to a restructuring of the Project in April 2012 to allow for a one-year extension of the closing date to June 30, 2013. In addition to the extension, the restructuring included revisions to the Project’s RF. These revisions were made in order to highlight overall achievements made by the PRAEBASE and to better show the progress made on several of the indicators since the beginning of the Project. The PDO- level indicators under the restructured project were: (i) primary education completion rate; (ii) student-teacher ratio; (iii) primary repetition rate; (iv) ratio of administrative staff to teaching staff; (v) girl-boy ratio of primary school enrollment; and (vi) gross enrollment rate. 1.4 Main Beneficiaries 11. The main beneficiaries of the Project were primary and secondary school students and education staff. First among those institutions to benefit from the Project was the MEPSA and its different units across its organization and administrative levels (central, departmental and local). The Project also targeted SMCs, out-of-school youth and Pygmy children. When the AF was approved in June 2009, the two other Ministries in charge of Education (Ministry of 2 The AF mentions performance indicators instead of PDO indicators. 3 There was variation across indicators in the legal agreements and the PAD and PP. The PDO indicators specified in the PP were: (i) primary education completion rate; and (ii) girl-boy ratio of primary school enrollment. 3 Technical and Professional Education, Qualifying Training and Employment (Ministère de l’Enseignement Technique, Professionnel, de la Formation Qualifiante et de l’Emploi – METPFQE) and the Ministry of Higher Education (Ministère de l’Enseignement Supérieur – MES)) also benefitted from the Project, mainly through the provision of training to staff on issues related to out-of-school youth. 12. To support the development and implementation of a sector plan, studies and activities were also funded including: studies on quality and governance of higher education, and on types of technical and vocational training provision; training related to the Education Management and Information System (EMIS) (e.g., database management, computer training, the purchase of EMIS-related software, etc.); and the provision of equipment and furniture to computer centers. The number of Project beneficiaries was approximately 63,000 students benefiting from new classrooms; 1,694 schools benefiting from SMCs; 4,030 indigenous children enrolled in primary education; and 1,423 out-of-school youth. In addition, 12,598 teachers, 945 inspectors, and 2,548 school directors were trained under the Project. 1.5 Original Components 13. The Project had four components. The components remained largely unchanged throughout the Project lifetime, though their titles were somewhat revised and a number of activities were scaled up. The original components were: 14. Component 1: Capacity Enhancement for MEPSA (US$2.7 million). This component aimed at strengthening MEPSA and its various units at the central and local level in order to prepare it for decentralized education management through strengthened DDEPSAs. The Project aimed to ensure that the capacity of regional departments was strengthened to develop, implement and monitor regional education plans, thus improving the internal efficiency of the education system at the primary and secondary levels. The Component also aimed at improving the efficiency of the teacher management system. Activities were supported under each of the Project’s three sub-components: Sub-component 1.1. Capacity Building for Planning; Sub-component 1.2 Support to Regional Departments and Decentralization of Education; and Sub-component 1.3 Improvement of Human Resource and Budget Management. 15. Component 2: Rehabilitation of the School Infrastructure (US$8.5 million). This decentralized and demand-driven component aimed at rehabilitating school buildings that were damaged, had deteriorated during the war, or had not been properly maintained. The Component also funded the provision of school furniture and rehabilitation and/or reconstruction of administrative offices in selected schools and construction of teacher housing in rural areas. A second aim of this component was to build the capacity of SMCs and strengthen their capacity to prepare school plans, manage budget allocations for school maintenance, and monitor the completion of rehabilitation works. 16. Component 3: Support to the Improvement of Quality of Education (US$6 million). This component focused on strengthening the quality of primary and secondary education by: (i) implementing an in-service teacher training program and providing training for school directors, pedagogical advisers 4 and inspectors; (ii) supporting school inspectors to improve pedagogical support to schools; (iii) providing all primary and junior secondary 4 These are teachers (often with better qualifications and more teaching experience) who provide pedagogical support to other teachers in schools. 4 school students with textbooks in three core subjects (French, Math and Civic Instruction/Education for Peace-Building) as well as teaching guides for those schools; and (iv) funding an assessment and review of the curriculum and providing assistance for the preparation of relevant teacher training programs for secondary education. This component included four sub-components: Sub-component 3.1 Textbooks; Sub-component 3.2 In-service Training for Primary School Teachers and Directors; Sub-component 3.3 Curriculum Development and In-service Teacher Training for Lower Secondary Schools; and Sub- component 3.4 Support to Inspections 5 to Enhance Pedagogical Support to Schools. 17. Component 4: Delivery of Formal and Non-formal Education Services to Out-of- School Youth and Pygmies (US$1.8 million). This component focused on providing support to two disadvantaged groups – out-of-school youth and Pygmy children. 6 For out-of-school youth, the Project aimed to pilot interventions to provide formal and non-formal education and training opportunities to youth ages 14 to 19 who had not been in school or who had dropped out. Such opportunities included apprenticeships with artisans and support to job insertion. For the second group, the Project supported activities aimed at increasing school enrolment of Pygmy children, including the distribution of school kits and organization of sensitization campaigns. The activities were organized under two sub-components: Sub-component 4.1 Out- of-School Youth; and Sub-component 4.2 Education Programs for the Pygmy Population. 1.6 Revised Components 18. Given the rationale behind the AF of 2009, the original components were maintained (although renamed under the AF) and scaled up. The scope of Components 1, 2 and 3 was modified. Under Component 1, a new sub-component was created to account for the current context of sector policy development. Further, two of the original sub-components, Support to the Regional Departments for the Decentralization of Education and Improvement of Human Resources and Budget Management were merged into one sub-component, Institutional Strengthening of the MEPSA. Component 2 was expanded to increase the number of classrooms to be rehabilitated and to include the construction of new classrooms, latrine blocks, wells, and houses for teachers; and also to include support to cover the costs associated with small projects for SMCs such as income generating activities (IGAs). Component 3 was expanded to include a new sub-component, Introduction of Standardized Tests for Primary and Secondary Levels. Component 4 remained unchanged. 5 The term Inspections refers to the School Inspectorate Department in the Ministry of Education both at the central and local level. 6 The expressions ‘Pygmy children’ and ‘autochthonous children’ are used interchangeably in the ICR. 5 19. Table 1 shows both the original and revised components. Table 1: Original and Revised Project Components Component/ Original Project Additional Financing Sub-component Capacity Building for MEPSA Capacity Building 1 (US$ 2.7 million) (US$ 2.75 million) 1.1 Capacity Building for Planning Capacity Building for Planning Support to the Regional Departments and for the Institutional Strengthening of the 1.2 Decentralization of Education MEPSA Support to the Development and Improvement of Human Resources and Budget 1.3 Implementation of EFA - FTI Sector Management Plan Rehabilitation of the School Infrastructure School Infrastructure and 2 (US$ 8.5 million) Management (US$ 6.5 million) Support to the Improvement of Quality of 3 Education Programs (US$ 4 million) Education (US$ 6 million) Training of Primary and Lower 3.1 Textbooks Secondary Teachers In-service Training for Primary School Teachers Support to Inspections to Enhance 3.2 and Directors Pedagogical Support to Schools Curriculum Development and In-service 3.3 Textbooks and Pedagogical Material Teacher Training for Secondary Schools Support to Inspections to Enhance Pedagogical 3.4 Curriculum Development Support to Schools Introduction of Standardized Tests for 3.5 Primary and Secondary Levels Delivery of Formal and Non-formal Special Programs 4 Education Services to Out-of-School Youth (US$ 1.25 million) and Pygmies (US$ 1.8 million) Pilot Programs for Out-of-School 4.1 Out-of-School Youth Youth Support to Education Programs for 4.2 Education Programs for the Pygmy Population Pygmies 1.7 Other significant changes 20. During the implementation of the original project, there were two reallocations of Project funds. In addition, the Project closing date was extended twice. It was first extended by six months from December 31, 2008 to June 30, 2009 to allow for additional time to complete civil works activities that had been delayed. During this period, and in order to support the GOC in expanding the scope of the activities in the Project, an AF was prepared. The AF (in 6 the amount of US$15 million) was processed in June 2009. In 2013, delays in the completion of civil works were again experienced which resulted in a second extension of the Project closing date for one year from June 30, 2012 to June 30, 2013. This was processed as a Level 2 restructuring and introduced revisions to the Project’s RF. Table 2 provides an overview of the key milestones for the Project. Table 2: Key Project Milestones Milestone Date Bank approval of original IDA Grant - IDA-H1270 September 2004 Effectiveness of IDA-H1270 March 2005 First reallocation of IDA funds between disbursement January 2007 categories Second reallocation of IDA funds between disbursement December 2008 categories Original closing date of IDA-H1270 December 2008 Extended and actual closing date of IDA-H1270 June 2009 Bank approval of Additional Financing - IDA-H4870 June 2009 Effectiveness of IDA-H4870 January 2010 Original closing date of IDA-H4870 June 2012 Restructuring of IDA-H4870 May 2012 Closing date of IDA-H4870 June 2013 21. By February 2007, the ‘Consultants and Audits’ and ‘Operating Costs’ categories (as specified in the DGA) had surpassed their original allocation as the funding needed under these categories had been underestimated. In 2009, a second reallocation was processed as the ‘Consultants and Audits’, ‘Operating Costs’ and ‘Transfers’ (under Component 2) categories were close to surpassing their allocations. This was due to unforeseen developments as a result of the new implementation arrangements being employed in the post-conflict environment. Specifically, the reallocation was needed as a result of: (i) the high costs associated with maintaining a Fiduciary Agency (FA) 7; (ii) the recruitment of additional staff; (iii) an increase in the United Nations Development Program (UNDP) management costs (for Component 2); and (iv) limited coordination in transfer of funds to UNDP making the timely tracking of spending under each category difficult. 7 The Project recruited a fiduciary agency (FA) as a fiduciary mitigation measure. 7 2. Key Factors Affecting Implementation and Outcomes 2.1 Project Preparation, Design and Quality at Entry 22. Project Preparation and Design. Project objectives fit squarely with MEPSA’s 2002 EFA Plan 8 and with the framework of on-going decentralization of the sector, as established by the 2003 decentralization law. A number of research activities and analytical studies were carried out to inform project design including: a national school census (2003-2004); a Public Expenditure Review (PER) of the sector (2003); a functional assessment of the organizational structure and capacity of School Inspection 9 (at its various levels); a study on teacher training; and an assessment of school infrastructure in a sample of schools in 8 of the 11 regions. Other pieces of analytical work undertaken included assessments of: programs targeting out-of- school youth, educational opportunities for Pygmy children; and the potential social and environmental impact of interventions being proposed under the Project. The Bank team developed a sound dialogue with education stakeholders, including various agencies and civil society organizations working in the sector. 23. Analysis of school census data and of equity and efficiency in the PER were used to inform the design of Component 1 (Capacity Building for the MEPSA). Further, the PER’s analysis on education financing and spending, and teacher management, supported the design of activities focusing on decentralization of education services and better teacher management, including the identification and removal of ‘ghost’ teachers from payroll and the training of bénévoles. Together the infrastructure assessment and analysis of community-driven civil works programs in the ROC informed the design of Component 2 (Rehabilitation of the School Infrastructure). The design of quality improvement activities under Component 3 (Support to the Improvement of Quality of Education) were guided by the findings of the PER, as well as the study on teacher training and assessment on School Inspection practices. Finally, the assessments on educational opportunities for Pygmy children and of programs targeting out-of- school youth were essential in the development of interventions to be supported by Component 4 (Delivery of Formal and Non-formal Education Services to Out-of-School Youth and Pygmies). 24. Lessons learnt from other IDA-financed projects in ROC and in other post-conflict countries in Africa, Latin America and Eastern Europe were useful in guiding project design and implementation. Principle among the lessons used were: (i) the importance of improving local governance and empowerment of local communities for promoting social stability and cohesion – informing the design of decentralization activities and providing the rationale behind strengthening SMCs; (ii) the advantages of using community-driven approaches to civil works in social sectors – as a means to strengthen the sense of community and accountability at the local level; (iii) the important role of stakeholder consultations – to promote engagement in Project activities and to ensure the alignment of activities with the community’s needs; and (iv) the utility of in-depth assessments of the needs of vulnerable populations – to design effective programs to address their identified needs. 8 As a follow up of the EFA Forum that took place in Dakar 2000, ROC prepared an EFA Plan, aimed at providing a vision for the development of the primary education sector. 9 The term Inspection refers to the School Inspectorate Department in the Ministry of Education both at the central and local levels. 8 25. Quality at Entry. The project design was well-aligned with the MEPSA’s 2002 EFA Sector Plan and with the needs and priorities identified in both the TSS and I-PRSP, including strengthening education services, rehabilitating school infrastructure, improving the quality of education, and promoting access to education of children from disadvantaged groups. As described above, the project design also benefitted from a number of studies while also drawing on lessons learned in similar contexts. A QER undertaken during project preparation in 2004 determined that the quality at entry was Satisfactory highlighting the clarity of the PDO and proposed activities as well as the Project’s alignment with the ROC’s strategic agenda for the education sector. Despite the Project’s strong analytical underpinnings, there were a number of shortcomings in the original design including: (i) weaknesses and inconsistencies in the presentation of key performance indicators across project documents; (ii) an overly ambitious design given the limited institutional capacity within the post-conflict environment; (iii) an underestimation of the time needed to effectively implement key reforms (i.e., decentralization and demand-driven construction); (iv) an underestimation of the time required for FM and procurement capacity to develop to ensure the effective implementation of project activities and the timely and accurate tracking of project funds; and (v) the challenges associated with effectively implementing a project when coordination among multiple agencies is required by the design (i.e., MEPSA and UNDP). For these reasons, Quality at Entry is rated Moderately Unsatisfactory. 2.2 Implementation 26. The Project became effective on March 25, 2005 six months after it had been approved as MEPSA experienced some difficulties in meeting the effectiveness conditions. These conditions included: (i) the recruitment of UNDP for the management of civil works; (ii) the recruitment of an FA for FM of the Project; (iii) the establishment of the Project Steering Committee and the Project Coordination Unit (PCU); and (iv) the adoption of the Project Implementation Manual. Although project effectiveness had been delayed, the Project Preparation Facility (PPF) in the amount of SDR 450,000 10 allowed the GOC to continue project preparation activities and make progress towards meeting the conditions of effectiveness. 27. In the first several months of project implementation, there were some delays in terms of activities that were supported under Components 2 and 4. The large number of stakeholders involved in the implementation of Component 2 (including UNDP, SMCs, DDEPSAs, and the Fiduciary Agency (FA), etc.) was challenging in terms of coordination and additional time was needed to ensure better alignment between UNDP and Bank procedures. In addition, the initial preparation activities for the sensitization campaigns and the program for out-of-school youth supported under Component 4, took longer than expected. There were also delays in the decentralization process. As a result, and in order to quicken the pace of these activities, the project opted to forego its use of a fully demand-driven approach for civil works activities, instead adopting one where MEPSA and UNDP would become increasingly responsible for decisions related to school construction. As a result of this decision—which was recommended by the Bank—the implementation of civil works activities gained significant momentum and this pace was maintained during the second and third years of the Project. 10 Approximately US$670,000. 9 28. During the mid-term review (MTR) in February 2007, the Bank and GOC undertook a thorough analysis of progress made and challenges faced during the first two years of the project. Some of the identified challenges included: (i) the complex civil works implementation arrangements which required the involvement of agencies whose procedures were not aligned with the Bank’s; (ii) different standards for FM and procurement procedures; and (iii) weak fiduciary and technical capacity in UNDP and MEPSA. The MTR recommended a number of concrete remedial actions, each of which were undertaken, including: (i) hiring staff to strengthen UNDP and MEPSA’s capacity while maintaining the fiduciary arrangements, i.e. continuing to use an FA; 11 (ii) the recruitment of an Monitoring and Evaluation (M&E) specialist; (iii) a reallocation of funds; (iv) fine-tuning of targets; and (v) a renewal of the existing contract between MEPSA and UNDP. 29. Despite the progress made as a result of concrete actions to address implementation bottlenecks, it was not possible to fully complete all activities envisaged under the Project by the original closing date of December 31, 2008. As described above, the Project closing date was, therefore, extended by six months (to June 30, 2009) in order to provide adequate time to complete these activities and properly monitor and report on achievements under the Project. 30. Around the same time of the original project closing, the AF was processed. Implementation of activities under the AF continued at the same pace, however, reforms related to the decentralization process continued to be slow. During the MTR of the AF in July 2011, these implementation delays were highlighted as a major concern. However, following the MTR, the implementation pace increased and most activities under Components 1, 3 and 4 had been completed by the original closing date of June 30, 2012 with the exception of school construction and rehabilitation. At this time, the Project had disbursed approximately 94 percent of its funds and the one-year extension to June 30, 2013, allowed for the completion of 95 percent 12 of school construction and classroom rehabilitation. At the time of project closing (in June 2013), 97 percent of IDA funds had been disbursed. 31. Overall Project implementation is rated Moderately Satisfactory. 2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization 32. Design. As previously described, project indicators were appropriate for measuring progress towards the achievement of the PDO. Although the RF was modified a number of times, the M&E framework remained focused on the Project’s core objectives of improving equity, efficiency and quality in the provision of education services. As noted earlier, following recommendations of the 2007 MTR, the RF was modified in order to fine-tune some of the targets and to improve the appropriateness of the PDO-level indicators. The RF was also modified in August 2008 in order to introduce core and mandatory sector indicators. In addition, the RF was also adjusted under the AF in May 2009 and under the Level 2 restructuring in May 2012. Most of the modifications in 2009 and 2012 were made to intermediate-level indicators to improve their alignment with project activities. For instance, the RF did not initially include measures related to the construction of new classrooms. Therefore, under the AF two new indicators were introduced to capture progress made in terms of the number of classrooms rehabilitated and the number of classrooms built. Overall, the 11 A detailed discussion on fiduciary aspects can be found in Section 2.4. 12 A total of 1687 classrooms were built and rehabilitated out of a planned total of 1,780, corresponding to a 95 percent completion rate. 10 indicators used to measure outcomes and outputs were appropriate and allowed the Bank and GOC to measure progress made throughout the project life. However, as described earlier, there were inconsistencies between the indicators found in the DGAs and those specified in the PAD and PP (for the AF). 27. In addition to the standard RF, the monitoring and reporting under the Project also included: (i) regular technical audits of civil works; (ii) financial and procurement audits; and (iii) development of concrete action plans to address and rectify issues related to project implementation, including most notably, those related to FM and procurement. 28. Implementation and Utilization. The Project provided ongoing support to M&E activities under the project, specifically financing: (i) the collection, consolidation and analysis of EMIS data; (ii) training of MEPSA staff at the central and local levels on data management and analysis; and (iii) the purchase of equipment required for the EMIS to function effectively. The Project also supported continuous M&E capacity-building activities for the MEPSA through seminars, workshops, field-level studies, etc. Data collected by the Project was used for various purposes – to modify project activities and to inform the design of the AF. Further, reports on civil works and technical audits allowed for refinements in procurement procedures and improvements in the quality of construction. Further, data collected by the EMIS were utilized in the preparation of a country education sector status report (that was published by the Bank in 2010). This report, in turn, guided the development of the GOC’s medium-term education sector strategy for 2008-2020. 29. Monitoring progress under the Project was rather complex as it involved a number of different actors and a large number of indicators, many of which were tracked at different levels of the education system. Each Component’s activities were monitored by a different entity 13 requiring the PCU to hire an M&E Specialist to consolidate the data which were used to develop detailed quarterly and yearly reports. Prior to 2007, as was common practice at the time, status reports (PSRs) did not systematically track and report on all of the indicators as Bank teams had some flexibility in terms of deciding which indicators to include/exclude in these reports. However, the majority of indicators were measured consistently beginning in 2007. Despite improved consistency of data monitoring and reporting, the DGA for the AF in 2009 did not distinguish between outcome (PDO) and output (intermediate) indicators. Furthermore, in the PP most of the project indicators were classified as “Intermediate Outcomes/Indicators” (or Tier 2 indicators). 14 Despite these limitations, in part related to evolving practices around M&E indicators/presentation, those measures monitored by the Bank throughout the life of the project provided sufficient information to track progress towards the achievement of the objectives under both the original grant and AF. On the basis of the information above, the M&E quality is rated Modest. 2.4 Safeguard and Fiduciary Compliance 30. The Project triggered three safeguard policies. Classified as a Category B project, the first safeguard triggered was that of Environmental Assessment (OP 4.01) due to potential soil erosion, water and air pollution and/or loss of vegetation that could be caused by the 13 Monitoring responsibilities were the following: Component 1 (DDEPSA), Component 2 (UNDP); Component 3 (INRAP), and Component 4 (MEPSA’s Literacy Division). 14 Consistent with the RF and monitoring template (and practice) at the time of the AF in 2009, Tier 2 level indicators (Intermediate Outcome/Indicators) could actually be either outcome or output indicators. 11 rehabilitation activities included in Component 2. The Project design mitigated against the identified potential risks by using an Environmental and Social Management Framework (ESMF) which was disclosed in-country. Throughout the life of the original project, this safeguard was rated Satisfactory as no special environmental problems were encountered. Under the AF, the ESMF and the operations manual were adjusted 15 to take into account the potential consequences of the construction of new schools on the environment since the original project had only financed the rehabilitation of existing schools. In the end, the risks did not materialize, but the safeguard rating was downgraded to Moderately Satisfactory until the end of the Project largely due to delays in making the adjustments required in the ESMF and the operations manual. 31. The second safeguard triggered by the Project was that of Involuntary Resettlement (OP 4.12) given the potential social impact of land acquisition by the Project and loss of livelihood. As a mitigating measure, the GOC prepared a Resettlement Policy Framework (RPF) outlining the principles and procedures needed in case such risks were to materialize. The RPF was also disclosed in-country. This safeguard was rated Satisfactory as the need for land acquisition and/or a loss of livelihoods did not occur. 32. The last safeguard policy triggered by the Project was that of Indigenous People (OP 4.2 - revised to become OP 4.10) resulting from the inclusion of activities targeting Pygmies and other indigenous populations under Component 4. An Indigenous Peoples Plan (IPP) was prepared prior to the Project to assess the potential risks of the Project in terms of its impact on the indigenous population and to identify mitigation measures. As activities under Component 4 took some time to reach a sound pace, there was a limited likelihood of the Project having an adverse impact on the Pygmy population and other indigenous groups. However, by the time activities began to be implemented under Component 4, the national strategy for the education of the indigenous population was updated. From this point forward, the rating for this safeguard was upgraded to Satisfactory and remained as such until the closure of the Project. 33. Fiduciary Compliance. Throughout the project life quarterly financial reports and regular audits were generally submitted in a timely manner. The GOC took concrete steps (agreed with the Bank) to address any fiduciary weaknesses that were identified over the course of the Project. Under the original project, the recruitment of a Fiduciary Agency (FA) was required as a mitigation measure against the risk of fiduciary non-compliance that had been identified at appraisal. Although an FA was recruited and Bank recommendations were largely implemented, the PCU’s fiduciary capacity remained limited and such capacity was never fully developed within the MEPSA. Further, designating UNDP as implementing agency under Component 2 introduced additional fiduciary challenges. While the Project was able to provide support to address limited fiduciary capacity related to activities being implemented on the ground, fiduciary issues which were more systemic in nature (i.e., resulting from specific institutional arrangements and/or the difficult post-conflict environment) were harder to fully address and rectify. 34. Ineligible expenditures were identified at three points during project implementation. In 2006, an amount of US$106,000 corresponding to ineligible expenditures was observed which 15 These adjustments included: i) a “General Environmental management conditions for construction contractors” in the EMSF; ii) an adequate sanitation infrastructure as a condition for all interventions in infrastructure under Component 2, and; iii) a more specific environmental screening process to identify social and environmental issues and decide on any mitigation measures. 12 resulted from a misalignment between Bank and UNDP procedures. There was, however, no evidence of a misappropriation of project funds. First, the Bank auditor was not able to access UNDP accounts (since UNDP procedures did not require disclosure of accounts to project auditors, having their own internal accounting and auditing procedures). The incomplete documentation prevented the audit from fully tracking how the money was spent across project activities supported under Component 2. Second, UNDP had covered a number of expenditures which had not been explicitly stipulated in the contract between UNDP and MEPSA with project funding and there were some Project expenses for which there was no justification. When FM and procurement reviews were undertaken in 2007, UNDP agreed to better align its procedures with those of the Bank and to make its accounts more readily available for Project audits to be carried out. Also, during the MTR in 2007 it was recommended that the Project continue to use an FA as a mitigation measure and to further strengthen fiduciary capacity within the MEPSA and UNDP. In 2008, the above-mentioned ineligible expenditures were reimbursed in full and the related recommendations from the MTR were followed. 35. In 2009, the project audit covering the grace period of the original IDA grant (4 months following project closing – from July 1, 2009 to December 31, 2009) identified the execution of ineligible expenditures. Specifically, the following unauthorized transactions had been made: (i) payments by UNDP to contractors; and (ii) payments for project management. It also identified (iii) a large amount of funds still in the UNDP account. Following extensive discussions between the Bank, UNDP, and the MEPSA (in which detailed explanations were provided on each issue identified), (i) MEPSA agreed to: (a) finance these payments from its budget; and (b) reimburse the corresponding IDA-ineligible expenditures; while (ii) UNDP agreed to transfer the remaining funds in its account to the Bank. These agreed actions were implemented though with some delay and in 2009, the Bank received the following reimbursements: FCFA 46,188,655 (approximately US$95,000) for payments made to contractors (during the grace period); FCFA 3,695,092 (approximately US$7,000) for operational costs covered by project funding for UNDP’s management of Component 2; and FCFA 179,979,239 (approximately US$350,000) for funds remaining in the UNDP account that had not yet been returned. 36. Issues related to ineligible expenditures were also encountered under the AF. In 2010, the Bank’s procurement review requested that FCFA 26,728,000 (approximately US$60,000) be reimbursed to the Bank to cover ineligible expenditures (of this amount) which had been processed. Specifically, the Bank review had identified some irregularities related to procurement activities carried out prior to the Bank’s issuance of No Objections as well as failure to fully adhere to Bank guidelines. Following FM and procurement reviews, a related action plan was prepared and implemented which strengthened FM and procurement supervision. It had been determined that the FM issues had occurred as a result of: (i) challenges around the recruitment of the Project internal auditor (as the existing auditor resigned); and (ii) weak capacity of the procurement staff in the PCU, especially since the FA was no longer supporting the Project. With delays, the funds were fully reimbursed in 2011. In each of these instances, the Bank worked closely with MEPSA and UNDP often holding technical missions to devise concrete action plans to address the identified issues – plans which were enacted on the ground. 13 2.5 Post-completion Operation/Next Phase 37. To date, there has been no post-completion operation. However, the Bank intends to continue its engagement with the GOC in the education sector. Specifically, it aims to support the GOC’s efforts to assist vulnerable youth through the Skills Development for Employability Project (P128628) signed in October 2014. Furthermore, in the Country Assistance Strategy (CAS) (2013-2016), the Bank expressed its willingness to fund an education project in Fiscal Year 2015. A PER of the sector is also currently being prepared. 38. In the meantime, funding for the continuation of activities originally supported by the Project continues to be provided by the GOC through its budget and by other development partners including UNESCO and the United Nations Children’s Fund (UNICEF). UNICEF, for example, plans to provide approximately US$1.4 million for the EFA and Quality Program earmarked in MEPSA’s 2014 budget. Specifically, these funds will be used to rehabilitate schools and their canteens. 3. Assessment of Outcomes 3.1 Relevance of Objectives, Design and Implementation 39. Relevance of Objectives. The relevance of the PDOs both under the project’s original design and under the AF was Substantial. The PDO was aligned with: (i) the GOC’s national development plans; (ii) major international education frameworks including that of the EFA- Fast Track Initiative (EFA-FTI) 16; (iii) priorities under the TSS (i.e., supporting the rehabilitation of the school network and school system); and (iv) the main features of the PRSP series (which, in the education sector, focused on increasing access and implementation of policy reforms related to quality and efficiency). Given that the Bank was the main actor in the sector, the GOC considered PRAEBASE to be the primary mechanism (and source of funding) for efforts in the ROC targeted towards rebuilding the education system and implementing reforms to improve quality, efficiency and equity in the provision of basic education services. The GOC’s support of this project was evidenced in its decision to provide a substantial amount of counterpart funding (US$15 million) under the AF in 2009. 40. As of project closing, the PDOs remained highly relevant and aligned with the current CAS (2013-2016) which aims to support the GOC in improving the delivery of basic public services, including education services. Within the education sector, the sought outcomes include, among others, increased equity, access and the quality of basic education – delivered in an efficient manner. 41. Relevance of Design. The design of the project (both under the original project and the AF) is rated Modest. The project built on lessons learned from previous operations, a number of which were implemented in post-conflict settings in Africa and Latin America, some of the key lessons which informed the project’s design included: (i) improving local governance and empowerment of local communities; (ii) the importance of using community-driven approaches in construction of social sectors; (iii) the importance of ensuring stakeholder consultation in the design and implementation phases; and (iv) drawing on in-depth needs assessments to guide activities to assist vulnerable groups. The original and revised project designs (under the AF) incorporated activities directly supportive of the GOC’s efforts to: expand access (construction and/or rehabilitation of classrooms); improve the quality of 16 Now called the Global Partnership for Education (GPE). 14 education services (teacher training, provision of textbooks, etc.); and increase equity (by supporting sensitization campaigns and programs to increase access among hard-to-reach populations). However, as described earlier there were some shortcomings in project design including: inconsistencies in the presentation of indicators; an overly ambitious design given the project timeframe especially in terms of capacity-building and a demand-driven civil works approach; and an underestimation of the time required for FM and procurement capacity to develop. Though some of these design features posed challenges throughout the life of the Project, there were notable improvements observed under the AF. Principle among these included: (i) a marked improvement in the implementation of project activities related to school construction and rehabilitation; (ii) capacity-building within the MEPSA; (iii) closer collaboration with UNDP and alignment of FM and procurement procedures; and (iv) the consistent follow up on FM and procurement issues using concrete action plans. 42. Relevance of Implementation. The relevance of implementation is rated Substantial given the number of achievements within a very difficult post-conflict environment. While some activities were not realized in full (e.g., roll-out of EMIS and the establishment of a demand-driven approach to civil works), the majority of planned activities were completed by project closing, including: (i) reconstruction of the school network; (ii) reduction of ‘ghost’ personnel in MEPSA; (iii) preparation of a medium-term sector strategy; (iv) training of teachers; (v) provision of textbooks in core subjects to primary and lower secondary school students; (vi) training of a large number of out-school children; and (vii) activities to increase the number of indigenous children with basic skills. 3.2 Achievement of Project Development Objectives 43. Assessment of PDO Achievements. The overall rating for achievement of the PDO is Moderately Satisfactory given the gains observed under the original project and later under the AF. A review of PDO indicators showed positive trends in terms of improvements in the quality, equity and efficiency of the education system. These were substantial achievements in light of the post-conflict context in which PRAEBASE was implemented. Moreover, achievements in these areas are reflective of broader international frameworks including EFA objectives and Millennium Development Goals (MDGs). As the Project was the main intervention in the education sector (and provided the primary source of funding) throughout the time in which it was implemented, improvements in these areas (measured by these indicators) can be, at least in part, attributable to activities initiated by and supported under the Project. 44. The PDO for both the original Project and the AF focused on improving quality, efficiency and equity in basic education; with only slight revisions in the PDO under the AF. However, given these slight revisions, progress towards achievement of the PDO is analyzed under the original project and under the AF. Achievement of PDO-level indicators under the original Project 45. As discussed previously, prior to 2007 as was common practice at the time, indicators were not regularly tracked in each status report. Beginning, however, in 2007 a consistent set of five PDO indicators were reported on in the status reports. For analytical purposes, this set 15 of indicators is used to measure achievement towards the PDO under the original Project. 17 The achievements are summarized in Table 3 which follows. Table 3: Achievement of PDO-level Indicator Targets under the Original Project Baseline Actual Target Level of Indicator 2004 (2009) (2009) achievement 1. Primary Completion Rate, total (% of Target 50% 77% 70% relevant Group) surpassed 2. Teacher / Student ratio decrease from Target 92 63 70 1/92 to 1/70 surpassed 3. Primary level average repetition rates 30% 21% 20% Target met decrease from 30% to 20% 4. The ratio administrative Target personnel/teachers at school level 40 24 15 partially met decrease from 40 to 15 5. The Regional Departments of Education have the capacity to produce No No No Target not met education annual plans. 46. During implementation of the original project, important gains were observed in quality aspects of the education system – most notably in the primary completion rate which increased from 50 percent to 77 percent during this period (surpassing the original target of 70 percent). There is also evidence of improvements in efficiency with: (i) the teacher-student ratio decreasing from a baseline of 92 to 63 during this same period (also surpassing the target of 70); (ii) the primary repetition rate decreasing from 30 percent to 21 percent (nearly achieving the target of 20 percent); and (iii) the administrative personnel to teachers ratio decreasing from 40 to 24 (though not meeting the end-of-project target of 15). However, the Project was less successful in terms of sufficiently developing the capacity of the regional departments of education (DDEPSAs) to prepare, implement and monitor regional annual education plans. Achievements in terms of equity can be observed in relation to the outputs and outcomes under Component 4 which targeted disadvantaged and hard-to-reach populations to increase their access to basic education, notable among these was the increase in indigenous children enrolled in formal education observed during this period as well as the increase in the number of these children who received pedagogical kits and school uniforms. Achievement of PDO-level indicators under the AF 47. Under the Level 2 restructuring approved in 2012, the RF was modified. The indicators used to measure progress towards achievement of the PDO during the implementation of the AF are those that were introduced at the time of the Restructuring. As described previously, project indicators were classified as “Intermediate Outcomes/Indicators” (or Tier 2 indicators) in the PP for the AF. Consistent with the RF and monitoring template (and practice) at the time of the AF in 2009, Tier 2 level indicators could actually be either outcome or output indicators. Under the 2012 Restructuring, however, a clearer distinction was made between the types of 17 These indicators include 2 indicators from the DGA, although with some slight revisions: indicators 2 and 3; the remaining indicators were in the PAD. 16 indicators (e.g., in terms of their classification as either PDO- or intermediate-level). Table 4 summarizes the progress made on these indicators under the AF. Table 4: Achievement of PDO-level Indicator Targets under the AF Indicator Baseline Actual Target Level of (2004) (2013) (2013) achievement Target partially 1. Primary Completion Rate 50% 79.5% 90% achieved 2. Teacher/Student ratio 92 57 56 Target achieved 3. Primary level average Target partially 30% 22.8% 20% repetition rate achieved 4. Ratio of administrative 40 57 17 Target not met personnel/teachers at school level 5. Gross enrolment rate 107% 116% 114% Target exceeded 6. Girl-boy ratio in primary 0.91 0.96 0.95 Target achieved school enrolment 48. As presented in the table above, gains were observed across most PDO indicators during this period: (i) the completion rate continued to increase under the AF even if at a slower pace (with the target partially achieved); (ii) efficiency continued to show gains evidenced in the teacher student ratio (for which the target was achieved); and (iii) equity also improved evidenced in increases in both gender parity and in the gross enrolment rate (with both end-of-project targets being surpassed). The Project, however, was less successful in terms of reducing the ratio of administrative personnel to teachers at the school level. Achievement of Intermediate-level Indicators 49. The intermediate-level indicators were strongly tied to project activities and showed important gains throughout the life of the project. For ease of analysis, these indicators are discussed in relation to the three key areas captured under the PDO – equity, quality, and efficiency. Progress observed under the Project is summarized below. 50. Quality. PRAEBASE supported improvements in the quality of education services. The Project contributed to an increase in availability of quality education inputs such as qualified teachers, textbooks for core subjects, better inspection support, revised curricula, and the introduction of testing for measuring learning outcomes. It also supported a number of activities (e.g., preparation of an institutional action plan, international workshops, training on ICT) designed to strengthen technical capacity within the MEPSA. 18 The Project: (i) improved qualifications of 1,697 primary teachers; and (ii) trained 9,141 primary teachers (including bénévoles) and 1,760 lower secondary education teachers. In total, PRAEBASE upgraded the qualifications of 12,598 basic education teachers. In addition, (iii) 2,548 school directors; and (iv) 945 inspectors and pedagogical advisors for primary education received training. Finally, (v) 2.6 million Math, French, and Civic Education textbooks at the primary level; and (vi) 340,000 textbooks in French and Mathematics at the secondary level were bought and distributed. 18 Annex 2 includes a table with all indicators. 17 51. Equity. Under Component 4, the Project piloted programs for out-of-school youth and supported educational programs for Pygmies. Specifically, the Component provided TA to develop training programs and sensitization campaigns, along with basic materials for Pygmy children, and TA to prepare a strategy to promote equitable access to education among disadvantaged children. A number of gains in equity were observed. Out of the over 1,400 out- of-school youth that were trained under the Project, 62 percent were working in a new activity with six months of completing the training and 4,030 additional indigenous children enrolled in primary education after having been provided school materials (e.g., pedagogical kits, school uniforms, etc.) as an incentive to enroll in basic education. Over 80 percent of the indigenous children that enrolled as a result of these activities had remained in school as of project closing. 52. Efficiency. With support from the Project, the following were accomplished: (i) statistical yearbooks were produced (with some delays); (ii) a sectoral strategy for EFA-FTI was approved; (iii) the share of education budget allocated to primary level increased as did (iv) expenditures on education (as percentage of total public expenditure); and (v) improved HR management with more than 3,000 ‘ghost’ personnel being removed from MEPSA’s budget. Further, school-based management was supported wherein: (vi) 1,694 SMCs were created; and (vii) SIPs were implemented by 270 of these SMCs. The increased availability of data (e.g., on teacher distribution, annual sector statistics) combined with construction and rehabilitation of schools is thought to have contributed to some improvements in the pupil teacher ratio which occurred during the Project. Further, although in percentage terms the budget increases were not very high, in nominal terms they were very important. Section 3.3 and Annex 3 provide further details on the efficiency aspects of the Project. 53. Detailed information on outputs and activities under the Project are presented in Annex 2. 54. The rating for overall PDO achievement is Moderately Satisfactory. This is based on the discussion above and on the calculation summarized in Table 5. In calculating the overall rating for the PDO, the following was considered: the original IDA grant (IDA-H1270) contributed to 57.6 percent of the overall IDA Project funding and the AF grant (IDA-H4870) contributed to 42.3 percent of overall IDA Project funding. Table 5: Overall Achievement of PDO Rating 19 Against Original Against Overall Rating PDOs Revised PDOs Moderately Moderately Rating Satisfactory Satisfactory Rating Value 4 4 Weight (% disbursed 56% 41% before/after PDO change) Weighted value 2.24 1.64 3.88 Moderately Final rating (rounded) Satisfactory 19 The scale used was: highly unsatisfactory = 1; unsatisfactory = 2; moderately unsatisfactory = 3; moderately satisfactory = 4; satisfactory = 5; and highly satisfactory = 6. The final rating of 3.88 is rounded up to 4 or MS. 18 3.3 Efficiency 55. Positive trends in key education indicators and internal efficiency gains. PRAEBASE was designed to support the GOC in achieving universal quality primary education by 2015 through improved efficiency, quality, and equity in the provision of basic education. As the main intervention in the education sector during the period from 2005 to 2013, the Project contributed to positive gains which occurred in the sector during this period: (i) the GER increased from 107 percent to 116 percent; (ii) the completion rate increased from 50 percent to 79 percent; and (iii) the girls to boys ratio in primary education increased from 0.91 to 0.96. Gains in internal efficiency in primary education were evidenced by decreases in: (i) the repetition rate (from 30 to 22.87 percent); and (ii) the pupil teacher ratio (from 92 to 57). 56. Improved management in the education sector. Efficiency of the sector improved through changes in MEPSA HR management including, most notably, the reduction of ‘ghost’ personnel from the MEPSA’s budget. Further, the decrease in the pupil teacher ratio also points to a more effective distribution of human resources across the sector. The development of school-based management which was supported under the project is expected to bring gains in efficiency over time in terms of the use of resources at the school-level, as communities are empowered to take a lead role in school management. The budget allocation to education increased with a more balanced distribution between the sub-sectors observed over the Project life (with increased funding to primary education). The use of EMIS data and a financial simulation model in the preparation of a medium-term budgeted sector plan contributed to the changes in budget allocations among education sub-sectors. 53. Project Costs. Component 2 Rehabilitation of the School Infrastructure/ School Infrastructure and Management received US$14.5 million in IDA funds and US$6.5 million in GOC funds making it the largest Component under the project. Under this Component, classrooms were built and rehabilitated at an average unit cost of FCFA 11,284,820 (approximately US$23,700). Although this unit cost is higher than that of other comparator countries such as Ghana (US$16,000 in 2008) or Madagascar (US$20,000 in 2011), it is lower than the unit cost (for classroom construction), for example, in South Sudan (another post- conflict country where the average cost is US$30,000). Civil works in remote rural areas are very expensive due to higher transportation costs. For instance, in some departments with dense forest, materials must be transported through or procured in Gabon. Costs associated with the use of a FA under the original grant, and the overhead costs associated with UNDP’s management of Component 2, increased the operating costs of the Project. However, the use of the FA was deemed to be a very important fiduciary mitigation measure for the Project. Further, though the overhead costs associated with UNDP’s management of civil works were higher than anticipated, in the post-conflict environment there were few (if any) organizations that had the necessary capacity to implement these civil works activities envisaged under this Component. In light of these factors, the overall rating for efficiency is Modest. 3.4 Justification of Overall Outcome Rating 57. The objectives and design of the Project were well-aligned with the GOC’s strategic objectives for the education sector and reflected the main thrust of larger international programs, including EFA and MDG initiatives. Most of the PDO-level indicators were achieved during the project life and in some cases, surpassed their end-of-project targets – making the achievement of PDOs rating Moderately Satisfactory as per Table 5 in section 3.2. Relevance of implementation was Substantial with important gains observed, and while 19 there were some significant delays, most Project activities were completed during the life of the project. By project closing, approximately 97 percent of available project funds had been disbursed. Although there were important efficiency gains (e.g., reduction of ‘ghost’ personnel from MEPSA’s budget, decreases in repetitions rates, etc.), civil works activities were typically delayed though in most cases completed, while the expenditures associated with these interventions were comparable to those costs observed in other similar post-conflict settings. For these reasons, project efficiency was Modest. The overall outcome rating is, therefore, Moderately Satisfactory. 3.5 Overarching Themes, Other Outcomes and Impacts 58. Poverty Impact, Gender Aspects, and Social Development. The Project had a sizeable impact on gender equity and social development. Under the Project, the girl to boy ratio in primary school enrollment (PDO level indicator) increased from 0.91 to 0.96 in 2013. The Project’s support to the construction of latrines may have played an important role in increasing equity as available research suggests that placing latrines in schools results in an increase in school attendance among girls. Since one of the Project components (Component 4: Out-of-School Youth and Pygmy Children) focused specifically on vulnerable groups, it was well-positioned to promote the inclusion of disadvantaged populations in the education system which could have a continued and important impact in the medium- and long-term. Further, many of the out-of-school youth who participated in the training program supported by the Project subsequently signed employment contracts with artisans – providing them with an additional source of income. Although the sustainability of the SMCs established is limited, the creation of SMCs and their role in empowering the school community was a major achievement of the Project, and the strengthened engagement of the community in school life is expected to be maintained. 59. Institutional Change/Strengthening. The Project played an important role in strengthening the MEPSA by introducing: (i) HR management improvements; (ii) strengthening M&E (including EMIS and use of standardized tests to measure outcomes); (iii) effective coordination of sector activities; (iv) fostering closer relationships with the communities on education sector management; and (v) improving GOC’s capacity to: (a) promote inclusion of disadvantaged populations; and to (b) develop and implement strategic policies and key reforms. 60. Other Unintended Outcomes and Impacts (positive or negative). There are no other unintended outcomes or impacts other than what has been reported. 3.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops Not applicable. 4. Assessment of Risk to Development Outcome 61. The risk to development outcomes at Project closing is rated Substantial. The risks identified during Project preparation were appropriate. Some of those identified included: weak capacity at the level of MEPSA (central and local levels); weak implementation capacity (including fiduciary); and the potentially tumultuous post-conflict context and development of tension around elections. Several mitigation measures were effectively implemented, including: (i) the use of an FA to carry out FM for activities under the original project; (ii) an outsourcing of the entire management of Component 2 to UNDP; and (iii) capacity building and TA throughout the Project life. 20 62. The fiduciary risks remained substantial throughout the Project implementation period and MEPSA’s technical and fiduciary capacity was not sufficiently strengthened at the local and central levels. There were ineligible expenditures observed at different times under the Project. Continuous mitigation measures were put in place to follow up and to resolve these identified shortcomings. The Bank undertook field-level missions which developed FM and procurement action plans to strengthen these aspects of the Project and to build GOC capacity in these areas. Despite these efforts, many of the FM challenges remained, more due to systemic issues than to project related ones. Given the above, the risk to development outcomes remains Substantial following the Project. 5. Assessment of Bank and Borrower Performance 5.1 Bank Performance (a) Bank Performance in Ensuring Quality at Entry 63. Bank performance at entry is rated Moderately Unsatisfactory. The original project design was well-aligned with MEPSA’s 2002 EFA Sector Plan and also with the needs and priorities identified in the TSS and I-PRSP. The design also benefitted from a series of key analytical pieces including, among others, a PER as well as lessons learned from other IDA- financed projects in ROC and operations in post-conflict countries in Africa, Latin America and Eastern Europe. As noted earlier, a QER confirmed that the quality at entry was Satisfactory. However, there were a number of shortcomings in the original project design including: (i) weaknesses and inconsistencies (across documentation) in the RF; (ii) an overly ambitious design (a) given the limited capacity and the time required for key reforms such as decentralization and demand-driven construction to materialize and (b) which relied on a high level of coordination among various agencies with different capacities and procedural norms related to FM and procurement; and (iii) an underestimation of the need for strong and continued capacity-building related to FM and procurement throughout the Project, particularly early in the project life. (b) Quality of Supervision 64. Bank performance with regards to quality of supervision is rated Moderately Satisfactory. The Bank team carried out 19 supervision missions, two MTRs, FM and procurement reviews as well as several technical audits. The Bank Team was able to respond to Project-related issues resulting from the slow pace of institutional strengthening and capacity-building at the central and local levels of the country’s education sector. The Bank was also proactive in identifying FM and procurement-related issues and responding appropriately by holding FM and procurement missions and collaboratively developing action plans to address the issues promptly. Although the monitoring and reporting of Project’s outputs and outcomes remained a challenge throughout most of the project life, beginning in 2007 there was improved consistency in the indicators used to measure progress – although M&E design and implementation/utilization was never fully satisfactory. The Bank could have done a better job of systematically documenting progress across each of the project components. Though there were five TTLs throughout the implementation of the Project, the Bank teams were comprised of technical experts with an appropriate skills mix for supporting and supervising the Project. At a higher level, the Bank was able to establish and maintain a strong dialogue with various entities, including the MEPSA, UNDP, and CSOs which was a notable accomplishment in a difficult post-conflict context characterized by significant need 21 and serious capacity constraints. Despite the context and difficulties faced during implementation, the Bank and the GOC were able to make significant strides in improving the country’s education system. (c) Justification of Rating for Overall Bank Performance 65. Based on the performance of the Bank at entry and supervision and the overall project outcome rating, the rating for overall Bank performance is Moderately Satisfactory. 5.2 Borrower Performance (a) Government Performance 66. The GOC demonstrated a high level of commitment to the Project, under the original IDA Grant and the AF for which it provided US$15 million in counterpart funds. Though ineligible expenditures were identified during project implementation as described earlier, these expenditures were reimbursed in full (though with some delays) and the GOC was proactive in addressing these issues. In addition, the effectiveness of the original grant and the AF were delayed as effectiveness conditions were not met during the expected time frame. At the same time, however, the GOC was faced with the large task of post-conflict reconstruction of the education system following a long period of conflict. In this environment of significant need and limited resources, the GOC was able to play an active role in the sector and to achieve considerable gains in the sector. These achievements are likely to serve as the building blocks for improving the quality and delivery of education in ROC moving forward. The rating for Government performance is, therefore, Moderately Satisfactory. (b) Implementing Agency or Agencies Performance 67. Over the life of the Project, MEPSA’s responsibilities in its role as implementing agency increased significantly. Most notably, the FA used early in project implementation was no longer used under the AF in 2009 as MEPSA took on these responsibilities. MEPSA was also responsible for general oversight of the Project and coordinating various inputs from a number of entities (e.g., PCU, FA, UNDP and DDPESAs) often with different procedural and management norms. This posed a considerable challenge particularly as the capacity of MEPSA itself did not materialize quickly during the early years of project implementation. Though financial reports and regular audits were submitted in a timely manner, there were a series of FM and procurement issues identified at various points during the project life. While both the Bank and MEPSA were proactive in identifying and addressing these bottlenecks, these issues persisted. Since MEPSA’s technical and fiduciary capacity was and remained relatively weak, the responsibility for implementation of Component 2 was assigned to UNDP. 68. UNDP played an important role in the Project as it was given responsibility for implementation of Component 2 in light of MEPSA’s capacity constraints at the time of appraisal. Though UNDP participated in Bank missions, since the procedures and guidelines relating to FM and procurement were not fully aligned, the Project experienced delays in implementing civil works activities and in validating financial transactions in a timely manner. Though UNDP did modify its approach and ultimately completed most of its assigned activities (e.g., completing classroom construction/ rehabilitation and preparing contingency plans to ensure their completion), these difficulties were never fully remedied and hampered the overall efficiency of project implementation. 22 69. In light of the above, the Implementing Agencies’ performance is rated Moderately Unsatisfactory. (c) Justification of Rating for Overall Borrower Performance 70. Taking into account the ratings for Government and Implementing Agencies’ performance, and as well as the Project’s overall outcome rating, Borrower performance is rated Moderately Satisfactory. 6. Lessons Learned 71. Capacity development and institutional strengthening take time to materialize especially in a post-conflict context characterized by significant need, competing demands and limited resources. This knowledge should, therefore, factor greatly into all aspects of project design. The Project’s design relied on an assumption that key education institutions would quickly regain the institutional capacity that had dissipated during the protracted conflict period. The Project’s results and experience during implementation indicate that while capacity may develop in areas relevant to specific project activities, significant gains in institutional capacity (e.g., those required to undertake key reforms such as decentralization) require more time to develop and require continued support from several partners. 72. Working effectively with other organizations in project implementation necessitates a thorough understanding of each organization’s procedures, guidelines and field-level practice in the design phase. The challenges encountered in civil works activities under the PRAEBASE, for which UNDP was the main implementing agency, show some of the potential bottlenecks that can arise without this understanding. However, by bolstering this understanding collaboration can be highly beneficial – allowing the project to effectively accomplish shared objectives in an environment characterized by severe capacity constraints. 73. Persistency in investments in equity pays off. Activities targeting disadvantaged groups took quite some time to start, however, keeping such activities in the AF proved fundamental for the improved equity resulting from the Project. This was the case for the persistency in building latrines (which was neglected during implementation of the original grant) and that should have an impact in improved gender parity as a result of the Project. The best practices of the training provision to out-of-school youth were used in the design of one of the components of the Skills Development for Employability Project (P128628), aimed at extending the equity gains of PRAEBASE. 74. Project documentation and reporting should be consistent and organized especially in terms of the M&E framework established to monitor progress under the Project. The inconsistencies in the project RF across various project documents, as well as the inconsistent reporting on progress, particularly earlier in the project life may have obscured some important project gains. 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners (a) Borrower/implementing agencies 75. The Borrower prepared a Project Completion Report which is in Annex 5. (b) Cofinanciers and(c) Other partners and stakeholders N/A 23 REPUBLIC OF CONGO Support to Basic Education Project – PRAEBASE Annex 1. Project Costs and Financing (a) Project Cost by Component (in USD Million equivalent) Actual/Latest Appraisal Estimate Percentage of Components Estimate (USD (USD millions)* Appraisal millions) Original Grant 20.00 20.60 Capacity Building for MEPSA 2.70 5.00 185% Rehabilitation of the School 8.50 9.00 105% Infrastructure Support to the Improvement of 6.00 4.80 80% Quality of Education Delivery of Formal and Non-formal Education Services to Out-of- 1.80 1.20 67% School Youth and Pygmies Additional Financing 15.00 15.20 Capacity Building 2.75 2.79 101% School Infrastructure and 6.50 6.40 98% Management Education Programs 4.00 4.30 107% Special Programs 1.25 0.98 78% Total Baseline Cost 33.40 33.47 Physical Contingencies 0.80 0.66 Price Contingencies 0.80 0.66 Total Project Costs 35.00 35.80 Front-end fee PPF 0.65 0.65 .00 Front-end fee IBRD 0.00 0.00 .00 Total Financing Required 35.00 35.80 *differences are a result of exchange rate fluctuations = XDR and USD. (b) Financing Appraisal Actual/Latest Type of Estimate Estimate Percentage of Source of Funds Cofinancing (USD (USD Appraisal millions) millions) Borrower 0.00 15.00 International Development Association 15.00 15.20 101% (IDA) IDA GRANT FOR POST-CONFLICT 20.00 20.60 103% 24 REPUBLIC OF CONGO Support to Basic Education Project – PRAEBASE Annex 2. Outputs by Component 1. The Republic of Congo Support to Basic Education Project (PRAEBASE) was implemented with financing from two separate IDA grants, an original grant in the total amount of US$20 million and an additional financing (AF) grant in the amount of US$15 million 20. The original Project Development Objective (PDO) was to support the Recipient’s effort to improve the quality of basic education by: (i) increasing efficiency in allocation and management of budgetary resources earmarked for basic education, and (ii) fostering equitable access to education services with emphasis on underserved areas, out-of-school youth, and other minority groups, such as Pygmies. 2. The PDO was only slightly revised under the AF, as the AF aimed to scale up activities which had begun under the original grant. Thus the revised PDO was a refinement of the PDO for the original grant. The revised PDO was to improve efficiency, quality and equity in the provision of basic education in the territory of the Recipient with a view to achieving universal quality primary education by 2015. 21 3. PRAEBASE was one of the only large-scale projects in basic education in the ROC during the period in which it was implemented. Civil works in the sub-sector were financed solely by PRAEBASE (using both IDA and counterpart funds under the AF) and support from other donors, such as UNICEF, UNESCO and the French Development Agency (Agence Française de Devéloppement – AfD) was very limited. This continues to be the case today. Thus, PRAEBASE, alongside with ROC budget funds, was the main financier and thus largely responsible for basic education development in Congo during the Project life. 22 4. The Project provided support to a sector in great need, facilitating the reconstruction of a school network in a context of increasing decentralization, and correcting system inefficiencies. Overall, it aimed to develop and consolidate delivery of quality and inclusive basic education in line with the MDGs. To achieve these objectives, the Project aimed to: (i) strengthen MEPSA’s planning function at the central and local level; (ii) carry out the physical reconstruction of the school network; (iii) correct inefficiencies in teacher distribution and management system; (iv) increase the budget allocation for the sector, and in particular for basic education; (v) improve the quality of service delivery through trained teachers and widely distributed textbooks based on revised curricula; and (vi) address the challenges of providing education to autochthonous children and out-of-school youth, in order to respond to important inequity challenges in the education sector. In doing so, PRAEBASE focused on providing support to civil works, technical assistance (TA) and training, improving access to education inputs (e.g., procuring textbooks), piloting training programs for 20 The original IDA grant was effective in March 2005 and closed in June 2009. The AF was effective in January 2010 and closed on June 30, 2013. 21 As per the respective DGAs. 22 AF financing was in a total amount of US$30 million of which US$15 million were provided by IDA and US$15 million were counterpart funds. Counterpart funds financed in 50 percent PRAEBASE activities; the remaining 50 percent was financed by the IDA grant. 25 disadvantaged groups, producing school yearbooks, and supporting policy development and implementation. The following is a list of project outputs by component. 5. Component 1: Capacity-Building for MEPSA 23. Based on the civil works completed under PRAEBASE (with consideration for the planned activities as outlined in the DGA), Component 1 is rated Moderately Satisfactory. Component 1 supported activities which would be important in preparing the basic education sub-sector for successful decentralization. This included providing TA to the central level to improve its capacity to define and manage sound policy planning and implementation as well as monitoring of such policies, which aimed at improving the internal efficiency of the sector. A set of reforms was expected be introduced, namely at the level of management of human and budget resources. 6. Sub-component 1.1: Capacity Building for Planning. The objectives of this sub- component were to support the establishment and operationalization of an Education Management and Information System (EMIS) at the central and regional levels that could facilitate the development of coherent and efficient education sector programs with a medium and long term vision. The Project, therefore, planned to: (i) support capacity-building of planning units at the central and regional level; (ii) procure the necessary physical inputs for the planning units to function, including computers and software, energy generators, and office equipment; and to (iii) pilot and implement yearly data collection and analysis, and produce education statistics yearbooks. Capacity-building activities. PRAEBASE supported a variety of capacity building activities to strengthen MEPSA’s staff capacity in data collection and analysis. Key among these were: (i) an international workshop 24 for 10 senior staff from MEPSA’s Planning Unit where experiences were shared with counterparts from another country; (ii) training of 100 central and department level MEPSA staff in planning and management; and (iii) training of 180 regional teams on information and communication technology (ICT). Yearly workshops to support data cleaning, analysis and production of education data were carried out during the lifetime of the Project. Procurement of physical outputs. The sub-component equipped MEPSA’s Planning Unit and several units in the various regional departments according to their needs. Production of school yearbooks. The Project financed and provided TA for a school census. Baseline data on the sector and on the basic education school network was collected. In addition, questionnaires were prepared and piloted for regular data collection on the key indicators. In addition to supporting data collection activities, this sub-component also supported data cleaning and analysis. It also supported the production of school yearbooks. The school mapping method was also introduced in several regions of the country, which allowed for the preparation of manuals defining the roles of each administrative level. Finally, the data collected under the sub- component allowed for the preparation of an education sector country status report 23 The Components and sub-components are identified by their titles in both the original IDA grant and the AF. 24 MEPSA staff was trained in Cameroon. 26 (CSR) 25 which informed the elaboration of the education sector strategy under Sub- component 1.3 (supported under the AF). 7. Most of the expected outputs under the sub-component were realized. However, the full roll-out of the EMIS was not accomplished during the Project life and annual statistics were, therefore, only carried out with significant delays. There are still coordination challenges in terms of preparing for data collection, ensuring adequate funding, undertaking data analysis and producing annual yearbooks on time. 8. Sub-component 1.2: Support to the Regional Departments and for the Decentralization of Education; and Sub-component 1.3: Improvement of Human Resource and Budget Management which were combined in the AF under Sub-component 1.2: Institutional Strengthening of the MEPSA. These sub-components aimed at supporting MEPSA’s institutional reorganization within the context of decentralization; strengthening DDPESAs; and promoting human resources (HR) and budget management reforms. To this end, the sub-components supported the following activities: (i) preparation and implementation of an action plan for the institutional reorganization of the MEPSA (centralized and decentralized levels); (ii) development and implementation of annual education plans with the participation of the DDEPSAs; (iii) development and implementation of school improvement plans (SIPs) by SMCs with the support of school inspectors and planning units; (iv) reformulation of personnel management policies, especially the reallocation of teaching staff and modified incentive mechanisms for keeping teachers in schools in disadvantaged regions; (v) elimination of ‘ghost’ personnel from MEPSA’s budget; and (vi) improvement of budget management. Preparation and implementation of an action plan for MEPSA’s institutional reorganization. An institutional assessment of MEPSA was carried out in 2006. The action plan for its reorganization that was prepared, however, was not implemented. The sub-components financed the equipment for DDEPSAs and inspections units including procurement of motorbikes and pirogues (small boats), and provided capacity-building activities for DDEPSAs and inspection staff. Development and implementation of annual education plans with DDEPSAs’ participation. Under this sub-component TA and capacity-building were provided to DDEPSA staff in the preparation of annual education plans, which were, in turn, prepared by some DDEPSAs. However, as MEPSA’s decentralized reorganization was not established, there were limited incentives among the DDEPSAs to produce and implement the annual plans in a systematic manner. Development and implementation of SIPs by SMCs with the support of inspections and planning units. SMCs were supposed to prepare and submit SIPs to the DDEPSAs and inspections for approval. This process was critical in strengthening the demand- driven civil works program under Component 2. Activities related to the development and implementation of SIPs were supported by these sub-components and by Component 2. Component 2 created more than 1,600 SMCs which received training in 25 The World Bank provided TA to MEPSA’s planning team for the preparation of the Education CSR, which was published by the Bank in 2010 as part of the Africa Region Human Development Series: Le système éducatif congolais: diagnostic pour une revitalisation dans un context macroéconomique plus favorable. 27 the preparation of the SIPs. By the end of project, 270 SIPs were prepared and implemented, which exceeded the original target of 150. HR management – Teachers management system. The sub-components provided financial and technical support to the preparation and implementation of a teachers’ census. This was essential in identifying ‘ghost’ teachers and teachers from other ministries being paid under MEPSA’s budget. It also provided information on the proportion of bénévoles in the teaching force (35 percent) and was useful in informing the design and implementation of the teacher training program (under Component 3) targeting those teachers with very little (if any) qualifications (including the bénévoles). From February 2008, the salaries of 5,148 identified ‘ghost’ teachers were frozen and 1,672 agents were identified as ‘ghost’ personnel with their salaries also suspended. In addition, 2,253 staff from other ministries was identified under MEPSA’s budget. The census allowed for a better understanding of teacher distribution in the ROC. On the basis of the census, the sub-components supported the development of policies on reallocation of teaching staff and established incentives for teachers’ to remain in disadvantaged regions. However, there was insufficient political commitment to approve and implement the proposed policies. Budget management. The sub-components aimed at supporting the preparation and monitoring of annual education budgets which would ensure budget allocations between the sub-sectors were balanced. The CSR supported under Sub-component 1.1 played an important role in ensuring such balance. The CSR provided a sector financial analysis which was used to inform decisions on budget allocations. It was expected that the annual budget include increased funding to recurrent costs other than salaries, and a budget line would be added to provide support to schools for operational costs. The cost estimates were to be based on the SIPs and the budget managed by the SMCs. Training and capacity-building activities at the central and local levels were supported by the sub-components. SMCs and planning units in MEPSA and DDEPSAs benefited from budget management training. Under the Project, a positive trend was observed in terms of increased budget allocations to the sector (increasing from 9 to 12 percent between 2004 and 2012), to basic education and to recurrent costs (other than for salaries). At the same time, the budget line for SIP related operational costs was not established. 9. Most of the sub-components’ activities were implemented and the majority of the challenges encountered related to political commitment to undertaking key reforms, including the reorganization of MEPSA, increasing decentralization and undertaking teacher management reforms. Under the sub-components, capacity was strengthened at the central and local levels and improvements in HR and financial resources management were observed with the elimination of MEPSA’s ‘ghost’ personnel. As noted above, the overall budget allocation to education – and to primary education – increased under the Project. 10. Sub-component 1.3: Support to the development and implementation of an EFA-FTI sector plan 26. This sub-component, introduced under the AF, aimed to improve sector planning and management through the preparation and implementation of a sector wide budgeted medium-term strategy. In addition to guiding sector activities, this strategy could be used to access additional funding to the sector through the EFA-FTI Catalytic Fund (CF) and would 26 In the text the expressions ‘EFA-FTI sector plan’ and ‘education sector strategy’ are used interchangeably. 28 allow for improved harmonization of donor support to the sector. The sub-component also supported TA and studies needed for the preparation of the strategy. Education sector strategy. The sub-component financed a number of technical and high level workshops which allowed for in-depth discussions on the sector and, in turn, contributed to the development of a vision for the education sector. Using the CSR as a baseline and with TA under the sub-component, a medium term budgeted strategy (Document de stratégie sectorielle de l'éducation 2008-2020) was drafted. The strategy was approved by the education authorities and is currently under implementation. The strategy, however, was not endorsed by the local donor group, and thus no follow up request for funding from the EFT-FTI CF took place 27. 11. Table 1 presents the various output indicators for Component 1. 27 The endorsement of the education sector plan by the local donor group was a pre-condition for the submission of a funding request. The donor group appraised the plan and provided recommendations for its improvement. As the plan was not revised by the authorities, it was never endorsed by the donors. 29 Table 1: Component 1 Outputs Implementation of the IDA-H1270 Implementation of the IDA-H4870 Component 1: Capacity Enhancement for the MEPSA: US$ 2.7 million Component 1: Capacity Building: US$ 2.75 million Result at Project Baseline End target End target Result at Project Indicator closing (2009 - Indicator Baseline (2004) (2008) (2013) closing (June 20013) extension of 6 months) Increase in share Increase share of public of education expenditure on education (% 2.90% 4.70% 3.20% 19% (2008) 25% 49.61% budget allocated to GDP) (also outcome indicator) primary level Increase Increase expenditure on expenditure on education (% from total public 9.30% 16% 13% education (% from 9.3% (2004) 16% 11.78% expenditure) total public expenditure) Increase recurrent non salary expenditure in education (also 2% 8% 16% EMIS Operational No (2009) Yes outcome indicator) Partially - statistics Partially. Although data Regularity of produced with delays and Reliable statistical yearbooks collection and analysis annual statistics still some quality based on school census took place at various No Yes production with No (2004) Yes challenges produced and available instances, yearbooks key sector annually were always produced indicators with significant delays. The first round of The school map and the standardized tests The school map was decentralized information is carried out at the produced however, the Yes - one exercise system operational and No Yes end of school year No (2009) Yes system did not remain completed producing key monitoring 2010/2011 and fully operational. information continues in following years A sectoral strategy Reliable count of active and No Yes Yes for EFA-FTI No (2009) Yes Yes non-active teachers is finalized approved 1,000 additional teaching staff per year (redeployed, reposted No Yes 600 (2006) or new recruitments) The functional analysis of the organization of the education sector and the development of No Yes Yes decentralization action plans for MEPSA completed 30 12. Component 2: Rehabilitation of School Infrastructure / School Infrastructure and Management. Component 2 is rated Moderately Satisfactory. The Component was designed with the objective of implementing a demand-driven approach to school rehabilitation and school construction program in the context of increasing decentralization. Originally, the Component focused exclusively on supporting the rehabilitation of school infrastructure destroyed during the conflicts, and later, it also supported the construction of new schools. It was envisaged that: SMCs would be established and trained in preparing SIPs – as a way to identify school rehabilitation needs; and that DDEPSAs would be trained to play a fundamental role in assessing and approving SIPs. Though the Component did support the creation and training of SMCs, it was less successful in establishing a fully operational demand-driven approach to civil works. To further strengthen the capacity and role of the SMCs, the Component also financed income generating activities (IGAs) and small school projects (SSPs). Rehabilitation and construction of school infrastructure. The Component was responsible for rehabilitating 781 existing classrooms and constructing 135 new classrooms – in sum – creating an additional 908 primary education classrooms. The classroom civil works program had a completion rate of 95 percent. In addition, the Component supported the refurbishing of additional classrooms and the construction of teacher housing and latrine blocks. With regards to the latter, only a few latrine blocks were built under the Project 28. The Component also financed technical audits of civil works to guide future approaches to school construction in ROC – which would not necessarily require outsourcing to a third party (e.g., as it had been outsourced to UNDP under PRAEBASE). Creation and capacity building of SMCs and the implementation of demand-driven civil works. The Component supported the creation of 1,694 SMCs (out of the original target of 1,700). Training for SMCs was also provided under the Component (as well as under Component 1, as mentioned previously). However, the preparation of good quality SIPs was challenging for the newly created SMCs, and thus, only 270 SIPs were prepared and implemented, falling short of the original target of 600. This meant that the civil works’ demand-driven strategy could not be fully implemented. Implementation of IGAs and SSPs. The Component supported the preparation and implementation of 41 SSPs (out of an original target of 50). The SSPs were intended to finance activities to improve the school environment including: the construction of fresh water wells and latrines; and purchasing power for the school. A total of 164 IGAs were financed (14 more than originally estimated) which largely supported production activities (86 percent financed agriculture production-related activities, 7 percent financed rehabilitation of small infrastructure such as stables for animals, and 7 percent financed small activities in catering and business). To support the development of the IGAs and SSPs various sensitization activities took place. 13. Table 2 presents the various output indicators for Component 2. 28 Latrine blocks were built only during the last phase of civil works under the AF. 31 Table 2: Component 2 Outputs Implementation of the IDA-H1270 Implementation of the IDA-H4870 Component 2: Rehabilitation of the School Infrastructure: US$ 8.5 million Component 2: School Infrastructure and Management: US$ 6.5 million Result at Result at Baseline End target Closure (2009: End target Indicator Indicator Baseline Closure (2004) (2008) extension of 6 (2013) (June 20013) months) Total number of additional classrooms 150 school improvement plans for 143 (2007 - latest built or rehabilitated at the primary rehabilitation submitted by the SMC 0 600 0 (2004) 960 916 available info) level resulting from project and approved annually interventions. Number of classrooms rehabilitated 0 600 642 Number of classrooms rehabilitated 0 (2004) 780 781 and equipped by the end of project Number of SMCs trained on 0 1,600 1,200 Number of classrooms constructed 0 (2004) 180 135 preparation of SIPS School management committees 0 (2004) 1,700 1,694 (CGDC) created CGDCs having a school development 0 (2009) 100 100 plan School improvement plans carried out 0 (2009) 150 270 32 14. Component 3: Support to the Improvement of Quality of Education / Education Programs. Based on the completeness of the work that was supported by the Component and when compared to the prospective outlined activities in the DGA, Component 3 is rated Moderately Satisfactory. This component aimed at improving the quality of education ‘software’ by: (i) supporting and expanding an in-service teacher training program for teachers in primary and junior secondary schools through a cascade approach targeting all provinces of the country; (ii)training trainers, inspectors, and school directors; (iii) providing TA for curriculum development and piloting of standardized tests to measure student learning outcomes; and (iv) providing textbooks and teaching guides for three core subjects (French, Math and Civic Instruction for Peace-Building for primary and junior secondary schools). 15. Sub-component 3.1: Training of Primary and Lower Secondary Teachers. 29 The objectives of this sub-component were to provide TA for the preparation, implementation, and revision of an in-service teacher training program; and to support the qualifying of bénévoles and primary and lower secondary teachers. The sub-component supported the implementation of the teacher training program throughout the Project life with revisions introduced under the AF following an assessment of program implementation under the original IDA grant. The program was implemented by the MEPSA based on a pilot study undertaken by the National Institute for Research and Pedagogical Action (Institut National de Recherche et d’Action Pédagogique – INRAP). The training program was supported by several modules focusing on academic subjects (French and Math) and pedagogical issues. Training modules were adapted as curriculum changes were introduced. Under the teacher training program, this sub-component supported the training of 9,141 primary school teachers (out of a target of 6,000). Approximately two-thirds (6,974) of these were bénévoles, thus significantly increasing the number of better qualified teachers in primary education. An additional 1,760 lower secondary teachers were also trained. Finally, the sub-component supported the training of 140 teacher trainers to administer the program and the training of 2,548 school directors with a particular focus on the introduction of the new curricula. 16. Sub-component 3.2: Support to Inspections to Enhance Pedagogical Support to Schools. This sub-component aimed at training school inspectors to more appropriately support schools in the context of decentralization. The sub-component also aimed to introduce a different approach to inspection geared towards pedagogical support and moving away from the traditional ‘policing’ approach. To achieve this, TA, training and procurement of goods was provided. The project trained 945 inspectors and pedagogical advisers in areas such as classroom practices, assessment of learning outcomes, administrative, budget and school assets management, and professional ethics. Office equipment for provincial inspections and motorbikes and pirogues were procured to facilitate the work of inspectors and pedagogical advisers, allowing them to reach as many schools as possible. 17. Sub-component 3.3: Textbooks and Pedagogical Material. This sub-component’s objectives were to increase the number of textbooks in core subjects in primary and lower secondary schools and to ensure that textbooks and other pedagogical materials were aligned with the reformed curricula. To this end, the sub-component supported the development of pedagogical materials and the procurement and distribution of textbooks, as well as revisions of the content of primary and junior secondary textbooks in French and Math. These textbooks were reproduced and distributed to primary and junior secondary schools throughout the country. 29 The order to the sub-components follows their order in the AF PP. 33 As a result of this, 2.9 million textbooks (including those for Civic Instruction for Peace- Building and for Natural Sciences under the AF) are being used by students in the ROC. 18. Sub-component 3.4: Curriculum Development. The Sub-component was responsible for revising primary and secondary education curricula and reviewing and adapting teacher training programs accordingly. Therefore, the sub-component provided TA and training. As a result of the TA provided to the MEPSA and to the INRAP, new primary education curricula was prepared and validated in a high-level workshop in 2012. The sub-component also supported the preparation, printing and distribution of 6,000 copies of the new curricula and provided TA to four institutions and MEPSA departments 30 - supporting them in preparing 18 syllabi and 5 skills development frameworks for in-service teacher training. The materials have yet to be fully utilized. 19. Sub-component 3.5: Introduction of standardized tests for primary and secondary education. The sub-component was responsible for the design and implementation of standardized tests for Grade 6 in French and Math. Capacity-building was provided to the MEPSA in creating, piloting and implementing the tests. The tests were first carried out in school year 2010-11 and MEPSA has included a budget line to finance annual testing. Tests for secondary education have not yet been fully implemented. 20. Table 3 presents the various output indicators for Component 3. 30 IGEPSA, INRAP, Direction de la Formation Continue et la Direction Générale de l’Enseignement de Base. 34 Table 3: Component 3 Outputs Implementation of the IDA-H1270 Implementation of the IDA-H4870 Component 3: Support to the Improvement of Quality of Education: US$ 6 million Component 3: Education Programs: US$ 4 million Result at Result at End Baseline End target Closure (2009 - Baseline Closure Indicator Indicator target (2004) (2008) extension of 6 (2004) (June (2013) months) 20013) 2 to 1 (2007: The ratio of textbook children of 1/1 latest Primary teachers having received in- for math and French is achieved by 0 1 to 1 0 6,000 9,141 information service training end of project available) Lower secondary teachers having Number of teacher trainers trained 0 240 140 0 2,000 1,760 received in-service training Number of school principals trained 0 1,600 1,233 School directors having received training 0 2,000 2,548 Number of additional qualified primary Number of teachers trained (1,000 0 4,000 6,974 teachers resulting from project 0 1,697 1,697 annually) interventions. Number of textbooks (Math, French and Civic Education) for children in Textbooks in Math, French, and Civic 2.6 primary and junior secondary school 0 1.8 million 1.1 million Education at primary level bought and 0 2.6 million million produced and distributed by the end of distributed the project Textbooks in French and Mathematics at junior secondary level, bought and 0 260,000 340,000 distributed Inspectors and pedagogical advisors for 0 1,000 945 primary having received training Implementation of the new curricula strategy has started by the end of the No Yes Yes project 35 21. Component 4: Delivery of Formal and Non-Formal Education Services to Out-Of- School Youth and Pygmies / Special Programs. Based on the work that was completed under this Component – it is rated Moderately Satisfactory. This component was designed to support the inclusion of disadvantaged groups in the education system. The Component provided training to out-of-school youth (ages 14 to 19) and supported the development of mechanisms to support school enrolment of Pygmy children. The Component provided TA to develop training programs and sensitization campaigns, along with basic materials for Pygmy children, and the TA to prepare a strategy to promote equitable access to education among disadvantaged children. 22. Sub-component 4.1: Pilot Programs for Out-of-School Youth. The objective of this sub- component was to pilot apprenticeship-based training programs that could allow out-of-school youth to find employment either in informal sector enterprises or by becoming micro- entrepreneurs. The sub-component contributed to strengthening local MPESA structures and associations which identified artisans and training candidates for the apprenticeship-based training program. Criteria were developed for accessing the training including a signed contract with the parents of the youth allowing their children to complete the training in exchange for free enrollment into the program. This sub-component identified 115 artisans who were trained in the areas of sewing, hairdressing, welding, auto-mechanics, carpentry, and agriculture and cattle breeding. These artisans were then supported by 40 local literacy teams (whose capacity was also strengthened through workshops and seminars provided by the sub-component) who then trained 1,423 youth, of which 638 were boys and 785 were girls. The sub-component also established a follow-up strategy to accompany the trainees. This, however, was only partially implemented, as not all necessary information on the trainees was maintained. The program is now being modified and scaled up by a new operation financed by IDA and the GOC called Skills Development for Employability Project (P128628) approved in September 2013. 23. Sub-component 4.2: Support to Education Programs for Pygmies. This sub-component aimed at increasing school enrollment among Pygmy children. To achieve this, the Sub- component supported capacity building, training, and the provision of educational goods to improve the access of Pygmy children to primary school. Thus, the Sub-component supported TA for the preparation of the Stratégie Nationale d’éducation des populations autochtones du Congo (National Strategy for the Education of Congo’s Autochthonous Populations), defining roles and responsibilities of the different actors in the education system responsible for the education of Pygmy children. The Strategy was approved by the education authorities and is under implementation. The sub-component also supported the procurement and distribution of school kits (including a backpack with basic education materials) for autochthonous children 31. More than 4,000 kits were distributed along with school uniforms also procured by the sub- component. In addition, the Sub-component also provided TA to existing NGOs working with autochthonous children in ROC and more than 1,000 t-shirts and materials for advocacy related to education were provided to these NGOs along with training on advocacy campaigns. The NGOs were fundamental in the distribution of the education materials and uniforms. Some of the NGOs included: Association enfance créatrice de développement, CARITAS, and Association congolaise pour le développement et l’intégration des populations autochtones. As a result of the sub-component activities, an additional 4,030 indigenous children enrolled in primary education during the life of the Project and 81 percent remained in school. Table 4 presents the various output indicators for Component 4. 31 In Congo, the expressions autochthonous children and Pygmy children are used indiscriminately. 36 Table 4: Component 4 Outputs Implementation of the IDA-H1270 Implementation of the IDA-H4870 Component 4: Delivery of Formal and Non-formal Education Services to Out-of-School Component 4: Special Programs - US$ 1.25 million Youth and Pygmies : US$ 1.8 million Result at Closure Result at Baseline End target End target Indicator (2009 - extension Indicator Baseline Closure (June (2004) (2008) (2013) of 6 months) 20013) A National Policy for Social Inclusion of Strategy for social inclusion and Yes Yes (completed in disadvantage populations, and out of school No Yes schooling for the indigenous children No (2004) Yes (completed in 2008) youth is prepared at the end of the project implemented 2008) Number of out of school children age 14-19 who received education opportunities Number of out-of-school youth aged including vocational training is at least 300 0 700 494 14-19 who completed vocational 0 (2004) 1,600 1,423 (Y2), 400 (Y3), and 700 (Y4) and at the end training of project The percentage of out of school youth The percentage of out of school youth who No information who are working in a new activity 6 are working in a new activity 6 months after 0 60% 0 (2004) 50% 62.10% available months after finishing the programs finishing the programs is at least 60% (Y4) is at least 50% Number of pygmy children who received Increase in the number of 2,100 formal and non-formal education by year is 0 3,000 1,612 autochthone children enrolled in the 4,000 4,030 (2009) at least 900 (Y2), 1800 (Y3) and 3000 (Y4) formal education Indigenous children having received 0 (2004) 4,000 4,030 pedagogical materials and uniforms Suitable system for follow up trained Yes although out of school youth is operational and No (2009) Yes with some producing timely information challenges 37 REPUBLIC OF CONGO Support to Basic Education Project – PRAEBASE Annex 3. Economic and Financial Analysis 1. This annex includes an analysis of the economic rationale for investments in basic education in the ROC, and the cost effectiveness of PRAEBASE by focusing on issues of external and internal efficiency, and sustainability. An analysis of rate of returns to education is provided to assess the external efficiency of the education system. Issues of access, equity and number of out-of-school children are presented so as to provide insight into the internal efficiency of the system. Sustainability analysis on Project interventions is also presented. It is worth noting that the Project was the main intervention in the education sector in the ROC during the last seven years. The Project played a fundamental role in changes observed in the education system during its implementation. Finally, some elements on efficiency of Project implementation are introduced. External Efficiency 2. Economic theory stipulates that participation in education builds human capital and is typically associated with higher earnings over an individual’s life span. Moreover, educated individuals tend to be better-nourished, healthier, and more productive. Educated women usually enjoy more autonomy and their level of education level is associated with lower fertility rates and mortality rates. Many studies using cross-national data from industrialized and developing countries highlight the important contribution of education to economic growth 32. Current education spending is a fundamental determinant of the future educational profile of the working age population, thus, impacting future labor market outcomes and other socio- economic outcomes, including better earnings, secured employment opportunities, and overall well-being. 3. An analysis of data from the Questionnaire des Indicateurs de base du bien-être - Enquête d'évaluation et de suivi de la pauvreté 33(QUIBB2 2011) provides some compelling evidence of the positive impact of investments in education on the labor market in ROC. Figure 1 illustrates the relationship between average wage earning by level of education and age in the ROC in 2011. As the graph points out, a higher level of education is positively associated with higher lifetime earnings. While the returns to education are relatively low at the primary level, returns to upper secondary education are higher. 32 Becker, 1964; Smits and Hoşgör, 2006, Jejeebhoy, 1995; Martin and Juarez, 1995; Lutz and Goujon, 2001; Basu, 2002; Goujon and Lutz, 2004; Joshi and David, 2006; Samir, Barakat, Goujom, Skirbekk, Sanderson, and Lutz, 2010, Harbison and Myers,1964, Denison 1962, and Benavot 1989. 33 Questionnaire des Indicateurs de base du bien-être - Enquête d'évaluation et de suivi de la pauvreté – Well Being Basic Indicators Questionnaire – Poverty assessment Survey. 38 Figure 1: Monthly Earnings by Education Levels in the ROC (CFAF) 150000 Average monthly earning(CFA) 50000 100000 0 10 20 30 40 50 60 Age in years Higher Education TVET Upper Secondary Loweer Secondary Primary Incomplete primary No primary Source: Authors: Estimations calculated from QUIBB 2011 data 4. The Mincerian regression coefficient shows that, among salaried workers, one additional year of education is associated with an average 8.8 percent increase in monthly earnings (8.5 and 9.3 percent for male and female, respectively). Estimations by level of education show that of all levels of education, completion of higher education is associated with the largest increase in earnings (Figure 2). This direct relationship between level of education and earnings supports the argument that education plays a significant role in poverty reduction in ROC. This means that as educational attainment increases, the likelihood of an individual to move out of poverty also increases. When wage employment is analyzed in relation to education level categories, attainment of some primary education produces an increase in monthly earning of 3.4 percent; the corresponding figures for completed primary, completed lower secondary, completed upper secondary, TVET, and tertiary education are 28.3 percent, 57.9 percent, 89.0 percent, 100.1 percent and 131.8 percent, respectively. Overall, for wage employment, attainment of some higher education seems to have the highest incremental yields, while incomplete primary education attainment yields the least compared to the subsequent level of education. Further, that rate of returns to education among females is greater than the rate of returns among males for all levels of education. 39 Figure 2: Increment in earnings by level of education compared to those with no education (among the working age population, i.e. ages 15-64 200.0 162.9 150.0 National Female 131.8 105.6 100.1 100.0 89.0 97.4 69.9 57.9 50.0 28.3 36.6 14.8 3.4 0.0 Incomplete Completed Completed completed TVET Some higher Primary primary lower upper education secondary secondary Source: Authors: Estimations calculated from QUIBB 2011 data 5. Although the ROC is a middle income country, the poverty incidence rate is very high and it inversely relates to the educational attainment of the population. At the national level, about 47 percent of the total population, and 42.1 percent of the working age population, live below the absolute poverty line (less than US$1.25 a day). The poverty incidence quickly falls with the level of educational attainment. An estimate from the QUIBB data (2011) for the working age population (age 15-64) shows that about 61 percent of the workforce with no education lives below the extreme poverty line compared to 59 percent for the workforce with incomplete primary education, 50 percent with completed primary education, 38 percent with completed lower secondary education, 25 percent with completed upper secondary education, 22 percent with TVET, and only 17 percent with some higher education (Figure 3). Figure 3: Percentage of the population below the absolute poverty line by level of education 70.0 60.6 59.1 60.0 49.9 50.0 42.1 38.1 40.0 30.0 25.1 21.5 20.0 16.8 10.0 0.0 No Incomplete Completed Completed completed TVET Some Congo Rep. education Primary primary lower upper higher secondary secondary education Source: Authors: Estimations calculated from QUIBB 2011 data 6. Educational attainment of the labor force directly correlates with the level of household income (by quintile). Similar to the association with an individual’s income, a higher education level of the household is associated with higher income. Only 2.6 percent of head of households with some higher education fall within the lowest income quintile, while more than 50 percent 40 fall in the highest income quintile (Figure 4). Further, inequality as measured by GINI coefficient is high in the ROC and hovered around 38 percent between 2005 and 2011. Figure 4: Household head educational attainment and consumption quintile Poorest Poor Middle Rich Richest 100% 10.8 11.4 17.1 26.7 35.7 80% 42.2 50.7 60% 40% 20% 30.4 29.1 19.5 9.8 0% 5.5 4.2 2.6 No education Incomplete Completed Completed completed TVET Some higher Primary primary lower upper education secondary secondary Source: Authors: Estimations calculated from QUIBB 2011 data 7. Education also provides opportunities to engage in more productive activities and secure employment, as it also improves the level of earning of the working age population. Earnings from wage employment are 109,490 CFAF (approximately US$230) per month, compared to 58,943 (approximately US$124) CFAF and 42,525 (US$90) CFAF per month for self- employment and family farming, respectively (Figure 5). Compared to 2005, the level of earnings for all categories increased (note that this is a nominal comparison). Figure 5: Earning trends by sector of employment and employment status 113029 2005 2011 120000 109490.1 100000 82608.23 80000 58942.63 60000 42525.43 42525.43 40000 20000 0 Agriculture Industry Services Wage Non-farm Farm Sector Emp status Source: Authors: Estimations calculated from QUIBB 2005 and QUIBB 2011 data 8. The educational profiles of the employed population vary accordingly to the return differential between sector of employment and employment status. About 80 percent of the population with some higher education secured wage employment, and the corresponding figures for TVET, upper secondary, lower secondary, completed primary, incomplete primary and no education are 55 percent, 56 percent, 36 percent, 21 percent, 14 percent, 10 percent, respectively (Figure 6). Figure 7 also demonstrates similar scenarios for sector of employment. 41 Figure 6: Educational distribution by employment status of the employed working age population Wage Non-farm (HE) Farm 100% 80% 60% 40% 20% 0% Incom Primary lower sec Upper seco TVET Incom Primary lower sec Upper seco TVET Comp primary Some higher Comp primary Some higher No education No education 2005 2011 Source: Authors: Estimations calculated from QUIBB 2005 and QUIBB 2011 data Figure 7: Educational distribution by employment status of the employed working age population Agericlature Industry Services 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% Incom Primary lower sec Upper seco TVET Incom Primary lower sec Upper seco TVET Comp primary Some higher Comp primary Some higher No education No education 2005 2011 Source: Authors: Estimations calculated from QUIBB 2005 and QUIBB 2011 data Internal Efficiency 9. In line with PRAEBASE development objectives, the discussion on internal efficiency focuses on quality of service delivery and educational indicators such on access, equity using data from two household surveys (QUIBB 2005 and QUIBB 2011). 10. Access to all levels of education improved between 2005 and 2011. A gross enrollment rate (GER) greater than 100 percent, yet decreasing, indicates an increase in access to the system of the appropriate age-cohort. (Figure 8). This can also be seen through the increase in the net enrollment rate (NER), which increased at all levels of education. Overall, the access rate in ROC significantly improved during Project implementation. 42 Figure 8: Trends in gross and net enrollment rates by level of education (percent) 2005 2011 140% 128% 116% 120% 96% 100% 87%88% 83% 80% 64% 60% 49% 39% 36% 40% 24% 20% 13% 10% 6% 0% Primary Lower Upper Teriary Primary Lower Upper secondary secondary secondary secondary GER NER Authors: Estimations calculated from QUIBB 2005 and QUIBB 2011 data 11. Gender gaps in all levels of education improved overtime. Between 2005 and 2011, access rates among females increased at a faster pace than rates among males in upper secondary and tertiary education. Further, more girls attended upper secondary schools than boys (Figure 9). ROC has met the respective Millennium Development Goal (MDG) for gender parity (Figure 10). Figure 9: Trends in gross enrollment rate by gender and level of education (percent) 133% 2005 2011 140% 124% 118% 114% 120% 98% 94% 100% 85% 81% 80% 67% 61% 60% 43% 35% 40% 20% 14% 12% 8% 4% 0% Male Feamle Male Female Male Feamle Male Feamle Primary Lower sec upper sec Tertiary Authors: Estimations calculated from QUIBB 2005 and QUIBB 2011 data 43 Figure 10: Gender parity index by level of education 2005 2011 1.2 1.1 0.9 1.0 1.0 1.0 0.9 0.9 0.8 0.7 0.6 0.6 0.4 0.2 0.0 Primary Lower secondary Upper secondary tertiary Authors: Estimations calculated from QUIBB 2005 and QUIBB 2011 data 12. Access to upper secondary and tertiary education improved for all income quintiles except for the lowest quintile. It is not unusual for the participation rate from the poorest segment of the population to be low in upper and tertiary education, but the decline in the trend is abnormal and further analysis is needed to understand the reasons behind it. Although there is a concern regarding the issue above mentioned, overall, equity in education service delivery showed sound improvement during the lifetime of PRAEBASE (Figure 11). Figure 11: Trends of gross enrollment ratios by level of education (percent) 2005 2011 140% 125% 121% 116% 120% 108% 98% 100% 90% 86% 80% 78% 80% 74% 64% 67% 66% 61% 60% 47% 43% 36% 40% 25% 26% 23% 14% 15% 20% 6%8% 8% 10% 3%2% 2%4% 0% Poorest Poor Middle Rich Richest Poorest Poor Middle Rich Richest Poorest Poor Middle Rich Richest Lower secondary Upper Secondary Tertiary Authors: Estimations calculated from QUIBB 2005 and QUIBB 2011 data 13. Analysis of out-of-school children also shows that the equity and efficiency of the education system slightly improved over time. Except for the lower secondary case dropout rates for all levels of education in 2011 were lower than those observed in 2005, during the early stages of Project implementation. Overall, the out-of-school rate for the school age children (official age 6-18) dropped from 16 percent in 2005 to 14 percent in 2011(Figure 12). 44 Figure 12: Trends of topology of out-of-school for age-cohort enrollment*(percent) 45% 2005 2011 43% 40% 35% 32% 30% 28% 25% 19% 20% 15% 10% 10% 7% 6% 8% 9% 6% 6% 7% 5% 3% 5% 2% 3% 0% Never Dropout Never Dropout Never Dropout Never Dropout attended attended attended attended primary lower secondary upper secondary tertiary(youth) Authors: Estimations calculated from QUIBB 2005 and QUIBB 2011 data Note: Primary age 6-11, Lower secondary age 12-15, Upper secondary age 16-18, tertiary (youth) age 19-24 14. Out-of-school rate by income quintile shows huge improvements between 2005 and 2011 for all income groups (Figure 13). ROC has one of the lowest prevalence rates of out-of- school children in Sub-Saharan Africa (SSA) (with the SSA average being 26 percent). Over the Project life, the gap between the poorest and richest dropped from 17 percent to 6 percent. Similarly, the gap between gender and area of residence also improved during the same period. Therefore, the Project contributed to a reduction in the number of out-of-school children and in disparities observed by income, gender, and other social factors. Figure 13: Trends of typology of out-of-school by income (percent) Poorest Poor Middle Rich Richest 14 12 10 8 6 4 2 0 2005 2011 2005 2011 Never attended school Dropouts Authors: Estimations calculated from QUIBB 2005 and QUIBB 2011 data 45 Sustainability 15. Based on recent estimates by the International Monetary Fund (IMF), the GOC has a sound budget framework and the momentum achieved with PRAEBASE could be sustained within the existing fiscal space (Figure 14). In addition, the absolute value of the GOC’s budget allocation to the education sector has been increasing over the past five years, and it accounts for close to half of the total spending in the social sectors. However, due to fast growth in GDP, the relative share allocated to education has been slightly declining, and it is also low if compared to the SSA average of about 3.9 percent of GDP (2011). Although the value-added of PRAEBASE is very high given that the country was emerging from a period of conflict, the Project amount relative to the GOC’s own education budget is small, and there would be no significant pressure on the budget once the Bank is no longer providing support to the sector in the ROC. The GOC has a good reputation with implementation and sustaining of similar interventions. Thus, the proposed incremental costs are manageable under the current fiscal space, bearing in mind that there is a huge need for resources to maintain the sector. Therefore, the investment of PREABASE is in line with the GOC priorities and manageable within the fiscal space of the current budget framework. Consequently, the sustainability of PRAEBASE interventions is not at risk. Figure 14: Past and projected government revenue and expenditures, 2010-2018 Total revenue and grants Expenditure and net lending −Current expenditure − Capital expenditure 4,000 3,500 3,000 2,500 2,000 1,500 1,000 500 0 2010 2011 2012 2012 2013 2013 2014 2015 2016 2017 2018 Budget Est. Budget Proj.a Proj. Proj. Proj. Proj. Proj. Source: International Monetary Fund (2013) Additional Aspects of efficiency of Project implementation 16. Positive trends in key education indicators and internal efficiency gains. PRAEBASE was designed to support the GOC in achieving universal quality primary education by 2015 through improved efficiency, quality, and equity in the provision of basic education. As the main intervention in the education sector during the period from 2005 to 2013, the Project contributed to positive gains which occurred in the sector during this period: (i) the GER increased from 107 percent to 116 percent; (ii) the completion rate increased from 50 percent to 46 79 percent; and (iii) the girls to boys ratio in primary education increased from 0.91 to 0.96. Gains in internal efficiency in primary education are evidenced by decreases in: (i) the repetition rate from 30 percent to 22.87 percent; and (ii) the pupil teacher ratio from 92 to 57. 17. Improved management in the education sector. Efficiency improved through changes in MEPSA HR management including, most notably, the reduction of ‘ghost’ personnel from the MEPSA’s budget. Further, the decrease in the pupil teacher ratio also points to a more effective distribution of human resources across the sector. The development of school-based management which was supported under the project is expected to bring gains in efficiency in terms of the use of resources at the school-level, as communities are empowered to take a lead role in school management. The budget allocation to education increased with a more balanced distribution between the sub-sectors observed over the Project life (with increased funding to primary education). The use of EMIS data and a financial simulation model in the preparation of a medium-term budgeted sector plan contributed to the changes in budget allocations between education sub-sectors. 18. Project Costs. Component 2 Rehabilitation of the School Infrastructure/ School Infrastructure and Management received US$14.5 million in IDA funds and US$6.5 million in GOC funds making it the largest Component under the project. Under this Component, classrooms were built and rehabilitated at an average unit cost of FCFA 11,284,820 (approximately US$23,700). Although this unit cost is higher than that of other comparator countries such as Ghana (US$16,000 in 2008) or Madagascar (US$20,000 in 2011), it is lower than the unit cost (for classroom construction) in South Sudan (another post-conflict country where the average cost is US$30,000). Civil works in remote rural areas are very expensive due to higher transportation costs. For instance, in some departments with dense forest, materials must be transported through or procured in Gabon. Costs associated with the use of a FA under the original grant, and the overhead costs associated with UNDP’s management of Component 2, increased the operating costs of the Project. However, the use of the FA was deemed to be a very important fiduciary mitigation measure for the Project. Further, though the overhead costs associated with UNDP’s management of civil works were higher than anticipated, in the post- conflict environment there were few (if any) organizations that had the necessary capacity to implement these civil works activities envisaged under this Component. 47 REPUBLIC OF CONGO Support to Basic Education Project – PRAEBASE Annex 4. Bank Lending and Implementation Support/Supervision Processes (a) Task Team members Responsibility/ Names Title Unit Specialty Lending Adriana Jaramillo Senior Education Specialist MNSHE Supervision ICR Maurice Adoni Senior Procurement Specialist AFTPW Cristina Isabel Panasco Santos Senior Education Specialist AFTEE Henri A. Aka Operations Officer SASHN Nadege J. X. Marthe Bicoumou Executive Assistant AFMCG Nestor Coffi Country Manager AFMNE Bourama Diaite Senior Procurement Specialist AFTPW Alassane Diawara Consultant AFTEW Ibrahima Dione Consultant MNSF1 Sakhevar Diop Consultant AFTEE Adriana Jaramillo Senior Education Specialist MNSHE Astania Kamau Temporary MNSHD Senior Financial Management Jean Charles Amon Kra AFTME Specialist Luc Lapointe Consultant AFTPW Senior Human Development Mahamat Goadi Louani AFTHW Specialist Philippe Mahele Liwoke Senior Procurement Specialist AFTPW Laura S. McDonald E T Consultant AFTEW Gaspy Gedeon Muanda Consultant AFTME Peter N. Ngomba Country Program Coordinator AFTEE Prosper Nindorera Senior Procurement Specialist LCSPT Dung-Kim Pham Senior Operations Officer AFTEW Clement Tukeba Lessa Senior Procurement Specialist AFTPW Kimpuni Souleymane Zerbo Consultant AFTEW Marcelo Becerra Lead Education Specialist LCSHE Rachidi Radji Country Manager AFMBI Senior Financial Management Bella Lelouma Diallo AFTMW Specialist Josyane Costa Program Assistant AFMCG Aly Sy Consultant AFTEW Bernardo Vasconcellos Consultant AFTEW Kebede Feda Human Development Economist AFTEW 48 (b) Staff Time and Cost Staff Time and Cost (Bank Budget Only) Stage of Project Cycle USD Thousands (including travel No. of staff weeks and consultant costs) Lending FY04 24 159.33 FY05 12 70.35 FY06 0.00 FY07 0.00 FY08 0.00 Total: 36 229.68 Supervision/ICR FY04 0.00 FY05 10 33.89 FY06 24 126.66 FY07 24 106.93 FY08 43 140.22 FY09 44 0.00 Total: 145 407.70 49 REPUBLIC OF CONGO Support to Basic Education Project – PRAEBASE Annex 5. Borrower's ICR 34 1. Le projet d’appui à l’éducation de Base (PRAEBASE) est né avec la signature de l’accord de financement signé le 23 Septembre 2004 entre la République du Congo et la Banque Mondiale. Au total, le PRAEBASE a reçu deux financements de l’IDA comprenant un premier Don IDA de 20 Millions $US et un Don supplémentaire de 15 Millions $US signé en avril 2009. A ces deux financements s’ajoute le financement du Gouvernement Congolais qui représente un montant de 15 Millions de $US pour la deuxième phase. Au total, le financement du projet est d’un montant de 50 Millions de $US sur la période 2005 – 2013. Le premier financement du PRAEBASE est entré en vigueur le 25 mars 2005 et les activités du projet ont effectivement démarré en avril 2005 avec une durée prévisionnelle de quatre ans. Pour le deuxième financement, la mise en vigueur a eu lieu le 19 janvier 2010. Le projet s’est clôturé le 30 juin 2013. 2. La tutelle du projet est assurée par le Ministère de l’Enseignement Primaire et Secondaire Chargé de l’Alphabétisation (MEPSA), principal organisme responsable de l’exécution du programme. Pour renforcer les capacités du MEPSA dans la gestion de projets, y compris les procédures de passation des marchés et de gestion financière, une unité de gestion du PRAEBASE (UGP) a été créée dès le démarrage de la première phase. Pour lui permettre d’assurer la gestion et la coordination du projet, l’UGP a été doté du personnel suivant : (i) un coordinateur du projet ; (ii) des coordinateurs pour les composantes 1, 3 et 4 ; (iii) un spécialiste en Suivi et Evaluation (S & E) ; (iv) deux adjoints de programme ; (v) un spécialiste en passation des marchés ; (vi) un spécialiste en gestion financière ; (vii) un auditeur interne ; (viii) un comptable ; (ix) un trésorier ; et (x) un aide-comptable. Tableau 1 : Plan de Financement par composante du projet (en Millions US$) Composante Phase 1 Phase 2 Total (2005/2010) (2010/2013) Composante 1 Renforcement des capacités du 5 5,5 10,5 MEPSA Composante 2 Infrastructure et soutien aux 9 13 22 Comités de Gestion Composante 3 Amélioration de la qualité de 4,8 8 12,8 l’éducation Composante 4 Soutien aux jeunes déscolarisés et 1,2 2,5 3,7 scolarisation des pygmées Imprévus 1 1 Total 20 30 50 Matrice des indicateurs de résultat sur le projet PRAEBASE 3. Pendant les sept années de mise en œuvre du projet, l’accès, la qualité et l’équité du système éducatif congolais se sont améliorés : un plus grand nombre d’enfants ont accès à l’école et peuvent étudier dans des classes plus petites même si le ratio élèves / enseignant reste élevé pour garantir un bon apprentissage ; il est passé de 92 :1 à 59,5 :1. D’importants défis demeurent quant à la disponibilité des enseignants et sur le ratio personnel administratif / enseignant qui reste encore très élevé et qui contribue à la captation des ressources du système au détriment d’une amélioration de la qualité. La parité fille - garçon a été atteinte en 2011-2012 au niveau du cycle primaire. Les progrès dans la scolarisation des filles sont très encourageants et les objectifs ont été atteints avec une parité de 1,06. En revanche, le succès est plus mitigé concernant l’amélioration de la qualité et l’efficience du système même si les progrès accomplis sont remarquables : le taux d’achèvement du primaire est de 80,6% en 2012 et le taux de redoublement est passé de 30% à 22,8% en 2012. Le taux de redoublement est particulièrement élevé au CE1 avec un taux de 26,4%. Le taux de redoublement reste donc élevé et 34 This annex is a summary of a detailed report prepared by MEPSA. 50 freine l’accroissement du taux d’achèvement. La politique de la gratuité introduite par le gouvernement en 2008 a eu des effets positifs sur l’accroissement des effectifs scolaires. Le montant versé par le gouvernement pour compenser la gratuité scolaire est de 1500 F par élève pour le primaire, 2500 F pour le secondaire et 3000 F pour le lycée. Le gouvernement respecte son engagement sur le versement annuel de ces fonds aux écoles. 4. Durant la 2ème phase du projet un accent particulier a été mis sur l’acquisition des apprentissages avec l’appui d’un cabinet d’études international. C’est ainsi qu’un dispositif d’évaluation a été mis en place par le Ministère de l’Education Nationale avec notamment la formation d’un équipe ministérielle de 20 cadres susceptibles de poursuivre la mise en œuvre des tests standardisés à condition de renforcer davantage leurs compétences dans le domaine du traitement et de l’analyse des données. A cet effet, il est prévu une ligne budgétaire spécifique pour la formation de 4 cadres parmi les 20 pour le renforcement de leurs capacités et assurer la pérennité des acquis. 5. S’agissant des formations des enseignants, des directeurs d’écoles, des inspecteurs, le PRAEBASE a atteint ses objectifs en termes quantitatifs mais il serait utile de mener une évaluation plus approfondie et spécifiques sur les impacts de ces formations au niveau même des pratiques enseignantes dans les salles de classe. Par ailleurs, le projet PRAEBASE a permis l’actualisation de des programmes scolaires dans l’enseignement primaire et secondaire 1er cycle qui doivent être introduits durant l’année scolaire 2013-2014. 6. Des progrès restent à accomplir au niveau du renforcement des capacités de l’administration centrale et décentralisée, notamment en termes de données statistiques et de planification. Dans les années à venir, une attention toute particulière devra être mise sur ces questions qui sont essentielles pour le pilotage du système éducatif et pour lesquelles le projet n’a pas permis un véritable changement. Toutefois, le Ministère s’est engagé à poursuivre ces efforts en inscrivant une ligne budgétaire spécifique dans le budget 2014 pour assurer une production régulière des données statistiques de l’éducation. 7. A la date du 30 juin 2013, le taux d’exécution financier total du projet PRAEBASE est de 97%. Le don du gouvernement Congolais a été entièrement versé et consommé. Tableau 2 : Les principaux indicateurs du Système éducatif Année 2011/2012 Taux Brut de Scolarisation du primaire 120.7% Taux Brut d’Admission 104% Taux d’achèvement du cycle primaire 80.6% Ratio Filles / garçons dans le primaire 1.06 Ratio personnel administratif / enseignant 57 Taux de redoublement 22.9 Ratio élèves / enseignants 59.5 Source : Annuaire statistiques 2011-2012 - MEPSA Composante 1 : Renforcement des capacités du MEPSA Le renforcement des capacités de planification 8. Cette composante avait pour objectif de renforcer les capacités du Ministère afin de leur permettre un pilotage par les résultats du système éducatif congolais. Cela impliquait notamment la mise en place d’un Système d’Information de Gestion de l’Education (ou plus simplement un système de collectes de données statistiques) et le développement de la carte scolaire. 9. Le Système de Gestion de l’Information de l’Education (SIGE). Les informations quantitatives et qualitatives sont indispensables pour la gestion des systèmes éducatifs et elles permettent une bonne planification. Un SIGE a été développé durant la première phase du projet et la deuxième phase du projet PRAEBASE a prévu la poursuite de la mise en place du SIGE au niveau central et son déploiement dans les DDEPSA. A la clôture du projet PRAEBASE, la collecte des données est encore un point faible au niveau du Ministère. Le SIGE est fonctionnel mais pas encore opérationnel malgré les appuis apportés avec l’intervention d’une Société Informatique. L’Annuaire Statistiques est publié avec 51 en moyenne une année de retard et plusieurs données sont manquantes, limitant ainsi le pilotage du système. Les raisons avancées de ces faiblesses sont structurelles avec notamment : (i) une insuffisance de cadres formés dans le Service Statistique de chaque DEP des Ministères en charge de l’éducation ; (ii) le questionnaire utilisé pour la collecte des données couvre l’ensemble des variables scolaires mais seule une partie des données est intégrée dans la base de données et exploitées ; (iii) Manque de prévisibilité du budget de l’Etat pour la collecte des données statistiques. La collecte des données commence donc très tardivement dans l’année, ce qui induit un retard considérable dans la disponibilité de l’annuaire statistiques. Au niveau des directions décentralisées, le SIGE n’est pas opérationnel et de la même façon la carte scolaire n’a pas été mise en place. 10. Gestion et déploiement des enseignants. Durant la première phase du PRAEBASE des efforts très importants ont été mis en place par le MEPSA afin de réviser les bases de données des enseignants. Ainsi, les résultats de la première phase ont été très encourageants avec notamment le recensement des enseignants « craie en main » financé par le PRAEBASE qui a permis de geler le salaire de 1672 enseignants « fantômes » et de recenser 2253 fonctionnaires travaillant dans d’autres ministères. Malgré ces efforts importants durant la première phase du PRAEBASE, des difficultés persistent sur la gestion des ressources humaines dans le secteur éducatif congolais. Au niveau de l’affectation des enseignants, l’affectation se fait par le niveau central. Or, les dernières données statistiques produites par la DEP ne permettent pas d’analyser la situation au niveau de la gestion et du déploiement des enseignants dans la mesure où l’aléa dans l’allocation des enseignants n’est pas connu. Le MEPSA accordera une attention plus particulière sur la production de certaines données statistiques telles que le nombre d’enseignants et d’enseignants bénévoles par département et sur l’aléa dans l’allocation des enseignants. Durant la phase 2 du projet PRAEBASE, aucune activité spécifique n’a été menée au niveau central concernant la gestion du personnel et des enseignants. 11. Réorganisation du MEPSA et décentralisation. Une analyse organisationnelle du MEPSA a été réalisée en 2006 35 afin de mettre en exergue les changements pour améliorer la décentralisation et la gestion du système éducatif congolais. Les recommandations émises n’ont toutefois pas été adoptées par le Ministère en raison des implications politiques qu’elles pouvaient entrainer. En effet, les changements d’organigramme entraînent un processus long qui dépend plus de la volonté gouvernementale que du Ministre. De la même façon, les prérogatives données aux structures décentralisées de l’éducation (DDEPSA) restent très restreintes dans la réalité et la gestion du système éducatif reste très centralisée. Le projet PRAEBASE n’a pas pu contribuer aux changements organisationnels du MEPSA qui sont du ressort du politique. En revanche, le projet PRAEBASE a largement contribué au renforcement des capacités des structures décentralisées que ce soit en termes d’équipements ou en termes de compétences. Soutien au développement et à l’exécution du Plan sectoriel 12. Un plan sectoriel a été élaboré en 2010 intégrant un modèle de simulation financier qui a été réalisé avec l’appui de la Banque Mondiale. Ce plan sectoriel se situe dans un horizon de douze ans (2008 – 2020). Ce plan sectoriel a été validé par le Gouvernement de la République du Congo mais les partenaires techniques et financiers ne l’ont pas endossé. Le non endossement du plan sectoriel est lié à : (i) un problème de procédure car le Plan Sectoriel a été validé par le gouvernement avant que les PTF puissent donner leurs commentaires et (ii) l’évaluation externe du Plan Sectoriel a révélé plusieurs insuffisances qui n’ont pu être corrigées dans la mesure où le gouvernement l’avait validé. Cette situation est d’autant plus dommageable qu’aucune requête de financement n’a été exprimée par le Congo au Partenariat Mondial de l’Education (PME, ex-FTI). Dans le cadre de la stratégie sectorielle, plusieurs activités ont été menées par le Ministère de l’Enseignement Supérieur (MES) et le Ministère de l’Enseignement Technique, Professionnel, de la Formation Qualifiante et de l’Emploi (METPFQE). Composante 2: Infrastructures et renforcement des comités de gestion scolaire 13. Au cours de la première phase du projet, exécutée de juillet 2005 à juin 2009, la responsabilité de la Maîtrise d’Ouvrage Déléguée de la composante 2 du PRAEBASE a été assurée 35 Financement PRAEBASE 52 par le PNUD Congo, à la demande du MEPSA. Un contrat a été signé entre le MEPSA et le PNUD définissant les responsabilités des deux institutions. Ce contrat est assorti d’un Manuel de Procédures. Au cours de la revue à mi-parcours (juillet 2011), il a été décidé (i) de prolonger le contrat MOD-PNUD de six mois (jusqu’au 31 décembre 2011) en vue de terminer le 1er programme qui avait pris du retard ; (ii) de laisser le PNUD poursuivre l’exécution du 2ème programme de la Partie B et (iii) de proroger d’un an la date de clôture du projet afin de permettre l’achèvement du deuxième programme de la partie B ainsi que l’achèvement des autres activités du projet. Pour la réalisation du 2ème programme de la partie B (2012-13), il a été décidé que le PNUD conserverait le personnel en place. 14. Cette prolongation du contrat du PNUD jusqu’à la clôture du projet est en partie due aux retards de l’exécution du premier programme mais aussi à l’impossibilité d’un transfert rapide des compétences du MOD-PNUD vers le MEPSA, contrairement à ce qui avait été prévu lors de la préparation de la deuxième phase. Ce non transfert des compétences est principalement lié à la non identification par le Ministère des structures ou des cadres qui pouvaient prendre le relais et bénéficier des compétences du PNUD. La Maîtrise d’Ouvrage Déléguée, gérée par le PNUD, est organisée en unités interdépendantes : (i) Au niveau national : la Coordination Nationale qui joue le rôle de conseil d’administration ; (ii) Au niveau régional : les cinq Antennes du PNUD qui ont chacune le personnel technique chargé de gérer les projets de la région ; et (iii) Au niveau local : les antennes s’appuient sur les Comités de Gestion de Développement (CGDC) pour la préparation des projets, pour la mobilisation communautaire et pour le suivi des travaux. 15. L’évaluation de cette composante reprend en grande partie les analyses qui ont été menées dans les deux études suivantes financées par le PRAEBASE : (i) audit technique semestriel des constructions 2012 36 ; (ii) rapport d’évaluation de la composante B, volet « gestion communautaire » 37. Les infrastructures scolaires 16. Pendant la première phase, le suivi et la gestion de l’exécution d’un nombre de projets aussi important dans une situation de post-conflit, avec des chantiers dispersés à travers tout le pays, a été un challenge qui malgré les difficultés a été remporté avec un certain succès par une équipe relativement restreinte. Malgré tout, des difficultés techniques et financières38 sont apparues qui auraient pu être évitées avec un suivi plus rapproché des travaux et de leur contrôle. Cette faiblesse du dispositif initial a été corrigée avec le recrutement d’un ingénieur au niveau national qui est chargé de la coordination et le suivi des activités de la deuxième phase dans les cinq antennes. Ce renforcement a été bénéfique au projet et il a eu pour résultat une amélioration des performances techniques des antennes ainsi qu’un meilleur contrôle financier des dépenses. Par ailleurs, afin de renforcer les capacités de suivi et de contrôle des ingénieurs des antennes régionales du PNUD, le projet a recruté deux techniciens du bâtiment technicien à « pied d’œuvre » (maçons, ouvriers de chantier recrutés localement) par chantier. Ces techniciens, formés à la passation des marchés et au suivi des travaux, sont chargés du suivi de l’avancement des chantiers et de la qualité des matériaux. 17. Pour le premier programme de la phase 2, le projet a financé la formation de 140 techniciens (70 écoles) ainsi que leur intervention pendant 4 mois avec cependant un forfait supplémentaire pour la prolongation de leur intervention sur les chantiers qui ont pris du retard. Pour le second programme, ce système a été modifié afin d’éviter les prolongations non-justifiées : le paiement des techniciens locaux se fera désormais sur la base d’un forfait payé par tranche suivant l’avancement des travaux, jusqu’à la réception provisoire. 18. La sélection des écoles s’est faite sur la base des critères d’éligibilité énoncés dans le Manuel d’exécution du projet. Pour la première phase, ces critères étaient essentiellement axés sur la réhabilitation des bâtiments scolaires endommagés au cours de la guerre et/ou par manque d’entretien. A ces critères ont été ajoutés des critères spécifiques à la deuxième phase pour permettre la construction de nouvelles infrastructures dans les districts qui n’avaient pas bénéficié de travaux en première phase et notamment dans les zones reculées ou vivent les populations autochtones. Cela a permis de créer une 36 Consultant : Monsieur Daniel Dupety 37 Consultant : Monsieur Urbain B. Tsala 38 Non éligibilité de certaines dépenses 53 véritable cohérence dans le projet avec un lien entre la composante B et la composante C. Concernant le mobilier, la priorité a été donnée aux écoles de la première phase qui n’avaient pas reçu de mobilier. 19. Les plans standards de construction. Les plans standards des blocs de classes, bloc administratif et blocs latrine ont été initialement fournis par le MEPSA (la Direction des études et de la Planification). Pour la deuxième phase, ces plans standard ont été modifiés/améliorés par la MOD- PNUD. Les modifications apportées dans les plans types de construction scolaires entre la phase 1 et la phase 2 du projet ainsi que les faiblesses constatées ci-dessus devront être validés par le Ministère afin que ces nouveaux plans types deviennent la référence nationale. 20. L’exécution des travaux par la MOD-PNUD. Le programme de la partie2 s’est déroulé en deux phases avec deux programmes successifs pour la deuxième phase : La phase 1, exécutée entre Juillet 2005 et Juin 2009, a duré quatre ans et avait essentiellement pour objectif la rénovation des infrastructures des écoles endommagées par la guerre et/ou détériorés faute d’entretien. De plus, le projet prévoyait de contribuer à la création et à l’entrée en activité des CGDC. Le premier programme de la phase 2 (phase 2-1) initialement prévu pour deux ans et demi (Juillet 2009 et Décembre 2011) a pris du retard et a dû être prolongé jusqu’en 2012. Il a repris les objectifs de rénovation des écoles et de création des CGDC de la première phase auquel a été ajoutée la construction de nouvelles salles de classe. De plus, la composante appuie les nouveaux CGDC par des activités de formation visant à renforcer leurs capacités et leur viabilité ainsi que par un soutien pour l’élaboration des plans de développement des écoles (PDE). Le second programme de la phase 2 (phase 2-2) est une extension du premier programme qui doit être exécutée en 2012 et 2013. Son exécution a démarré en mai 2012 avec le lancement des appels d’offres du Génie Civil. 21. Il est important de noter que la construction des nouvelles salles de classes du projet n’a parfois pas été accompagnée de construction de bloc latrines. C’est particulièrement le cas pour la première phase pendant laquelle, il était estimé que l’urgence était avant tout de réhabiliter ou de reconstruire les classes endommagées par la guerre. Plusieurs écoles n’ont pas de point d’eau sur leur site et que souvent pour amener de l’eau à l’école les élèves devaient parcourir de grande distance. Les bâtiments réhabilités ou construits en zone urbaine n’ont pas de clôture, ce qui entraîne un risque de vandalisme de la part de la population environnante et une dégradation rapide des locaux. La seule solution pour éviter les programmes de réhabilitation à intervalles rapprochés, serait de construire des murs de clôture pour les écoles situées en zone urbaine et d’imposer aux CGDC de mettre en place un système de gardiennage. 22. Les délais d’exécution. L’exécution de la deuxième phase de la composante 2 a subi d’importants retards dès son démarrage. Parmi les contraintes qui ont entrainé ces retards, il a été mentionné : (i) le retard du premier décaissement en faveur de la MOD-PNUD qui n’est intervenu qu’en juin 2010, (ii) le temps mis pour la préparation et la validation des nouveaux plans et spécifications techniques pour les nouvelles constructions ; (iii) les difficultés rencontrées par la MOD-PNUD pour l’évaluation des premiers appels d’offres ; et (iii) le démarrage des premiers chantiers au début de mai 2011, à la fin de la période pluvieuse alors que l’accessibilité des sites était encore très difficile pour les entreprises aussi bien que pour les contrôleurs du PNUD. 23. L’exécution budgétaire. Au 30 juin 2013, le montant total des dépenses pour la construction des salles de classe, des latrines et des logements est de 5 241 557 317 FCFA sur la totalité du projet PRAEBASE. Il est toutefois à noter que certaines dépenses devront être encore réalisées car certains chantiers de la phase 2 ne sont pas terminés. L’étude des coûts unitaires par salle de classe réalisée lors d’une étude 39 sur les travaux de construction montre que les coûts étaient moins élevés en première phase qu’en deuxième phase. Les raisons sont multiples : (i) la majorité des classes ne comprenaient pas de coursive sur la façade principale et les modifications apportées aux plans standards ont augmenté les coûts ; (ii) les bâtiments annexes (logements, administration et latrines) étaient plus nombreux qu’en première phase ; (iii) il s’est écoulé 4 ans entre le début de la première phase et celui de la seconde phase, avec un taux d’inflation important pour le secteur du bâtiment ; et (iv) dans de nombreux cas, les entreprises ont été sollicitées pour des réhabilitations et c’est juste avant le démarrage des chantiers qu’il leur a été signifié que finalement les bâtiments existants seraient démolis et reconstruit. Ce changement a donc fait l’objet de négociations directes. Les coûts unitaires pour la construction d’une salle de 39 Audit technique des constructions – Juillet 2012. Philippe Dupety 54 classe de la deuxième phase sont en moyenne de 14,13 Millions FCFA avec un maximum de 21,05 Millions FCFA pour la Likouala et de 8,8 Millions dans le département de la Cuvette. Les Comités de Gestion et de Développement Communautaire (CGDC) 24. La création des Comités de Gestion et de Développement Communautaire (CGDC) dans les écoles répond au souci de mettre en place des dynamiques de développement capables d’assurer efficacement la gestion communautaire des écoles, le suivi des travaux de réhabilitation et de préservation des infrastructures scolaires réhabilitées. Dans le cadre de l’exécution de sa première phase, le projet PRAEBASE a permis de créer 1 610 Comités de Gestion et de Développement Communautaire (CGDC) sur l’ensemble du territoire congolais. Cependant, l’expérience a montré que le dynamisme et l’enthousiasme de ces comités s’émoussaient avec le temps 40. Par conséquent, il a été envisagé au cours de la phase 2 du projet de (i) renforcer les capacités et la viabilité des CGDC mis en place et de (ii) favoriser leur autonomisation et leur pérennisation. Durant la deuxième phase du projet, l’objectif initial était de faire bénéficier 500 CGDC d’un appui et d’un encadrement pour le développement de microprojets. Toutefois, en raison des contraintes du terrain et du temps imparti pour former correctement les CGDC, l’objectif a été révisé à la baisse en cours d’exécution pour passer à 350. Deux types de sous projets sont éligibles: (i) les Activités Génératrices de Revenus (AGR) avec un plafond fixé à 2 000 dollars américains ; (ii) et les Petits Projets d’Aménagement de l’Environnement Scolaire (PPAES) plafonnées quant à eux à 500 dollars. 25. Les Plans de Développement des écoles. Les apports du projet aux écoles se font sur la base des Plans de Développement d’Ecoles (PDE) élaborés par les Comités de Gestion et de Développement Communautaire (CGDC). A partir des PDE, les CGDC formulent les besoins des écoles au niveau des infrastructures, des équipements, des fournitures, du personnel et des aménagements divers. Pour s’assurer que les CGDC peuvent élaborer les PDE et formuler correctement des requêtes de financement, un mécanisme de sensibilisation et de formation des CGDC par les antennes PNUD a été mis en place avec l’aide des spécialistes de la sensibilisation et de la mobilisation communautaire. Composante 3 : Amélioration de la qualité de l’Education Formation des enseignants, des inspecteurs, des conseillers pédagogiques et de directeurs d’école 26. La formation des acteurs du système éducatif est au centre des questions de qualité des apprentissages. Cette sous composante représente un volet important du projet PRAEBASE d’autant plus que plusieurs. Au total 18 syllabus et 5 référentiels de compétences ont été produits durant la deuxième phase du projet PRAEBASE. Cela représente une masse importante de documents didactiques pour le Ministère afin de renforcer les compétences des acteurs de l’éducation. Toutefois, il est important de noter que ces outils ont été validés avec le Ministère de l’Enseignement primaire, secondaire et de l’Alphabétisation mais que le statut de ces outils n’est pas encore clairement défini. Le projet n’a pas touché tous les enseignants du pays. En conséquence, tous les enseignants ne disposent pas de ces outils. Le Ministère devrait s’interroger sur la possibilité de disponibiliser les syllabus à tous les enseignants. La formation des acteurs du système éducatif 27. Les effectifs scolaires dans les écoles publiques du primaire ont considérablement augmenté ces dix dernières années passant de 442.000 élèves en 2005 à 506.000 en 2011. Sur la même période le premier cycle du secondaire, l’augmentation des effectifs passe de 128.000 à 152.000. Le rythme de recrutement des enseignants n’a pas suivi l’augmentation des effectifs et le système éducatif congolais s’appuie sur un nombre conséquent d’enseignants bénévoles. Ces enseignants bénévoles constituent une réponse des parents qui ont été conduits à recruter directement des enseignants. Ces enseignants bénévoles n’ont pas reçu de formation initiale. Ils sont pour la grande majorité titulaire du BEPC. Les formations des enseignants sont menées par les réseaux des formateurs départementaux de 40 Le rapport sur l’état d’avancement des activités de la composante B produit en mars 2009 estimait que le taux de fonctionnement des CGDC avait chuté à 65,82 % depuis le démarrage de la première phase du projet. 55 l’enseignement. Ces réseaux de formateurs départementaux sont constitués d’inspecteurs, de conseillers pédagogiques et de professeurs du secondaire. Is ont été mis en place en 2002 par l’INRAP. L’objectif de ces réseaux est (i) d’assurer la décentralisation et la démultiplication des formations, (ii) apporter un appui auprès des équipes de circonscription. Les 180 membres de ces réseaux ont ainsi bénéficié d’un renforcement des capacités chaque année durant toute l’exécution du projet (phase 1 et phase 2). Selon l’évaluation externe effectuée sur les formations, il s’avère que la quasi-totalité des formateurs (91,6%) ont considéré que cette formation leur a été utile car elle leur a permis de se replonger dans les matières qui faisaient l’objet des formations des enseignants. Par ailleurs, il est important de noter que le programme de formation des enseignants du primaire a introduit une sensibilisation sur les questions de VIH/Sida et MST. 28. La formation des enseignants du primaire bénévoles. Le bilan de ces formations montre que la formation a touché 1697 enseignants bénévoles du primaire sur 2000 enseignants bénévoles prévus par le projet. Selon les personnes rencontrées, ce résultat est optimal car tous les enseignants bénévoles ont été touchés. Ces formations ont duré 26 jours et ont eu lieu chaque année. 29. Formation des enseignants titulaire du primaire. Sur la période de la deuxième phase du projet, 2162 enseignants titulaires du primaire et nouvellement recrutés ont reçu une formation pendant 12 jours contre 2000 prévus. Les critères de sélection pour la formation des enseignants étaient qu’ils ne devaient pas avoir reçu de formation par le PREABASE durant la phase 1. Formation des enseignants titulaire du secondaire. 1760 enseignants du secondaire premier cycle ont été formés lors de la 1ère phase du PRAEBASE et 2398 durant la 2ème phase. Soit un total de 4158 enseignants formés. Les formations se sont orientées sur les matières suivantes : Mathématiques, Sciences physiques, Français, Sciences de la Vie et de la Terre, Anglais, Histoire-géographie. La formation des directeurs d’écoles. 2548 directeurs d’écoles ont été formés durant les deux phases du PRAEBASE, l’objectif étant de 2600. Appui aux inspecteurs 30. Les formations financées par le PRAEBASE ont porté sur les pratiques de classe, le contrôle, évaluation, l’encadrement et formation du personnel, la gestion administrative, des finances et du patrimoine scolaire et l’éthique professionnelle. L’objectif de 900 inspecteurs et conseillers pédagogiques formés a été atteint sur l’ensemble du projet avec la formation de 945 personnes. Formation des inspecteurs du secondaire. Une session de renforcement des capacités des inspecteurs des collèges d’enseignement général a été organisée pendant six jours dans les matières suivants en 2011 Manuels scolaires et matériels pédagogiques 31. L’acquisition des manuels scolaires passent par les procédures d’appels d’offre lancées par l’unité de gestion de projet. Les dossiers d’appels d’offre incorporaient l’acquisition et la distribution des manuels. Durant la période du projet, des difficultés, non spécifiques au Congo, sont apparues avec les questions de Copyright (droits d’auteurs) qui ont entraîné une réallocation des fonds lors de la revue à mi-parcours. Cette réallocation des fonds a été faite au bénéfice de la rédaction des projets des manuels nationaux. Développement des curricula 32. Le développement des curricula s’est fait avec les cadres de l’INRAP durant la 1ère phase. Un cabinet d’étude est venu former ces cadres à la rédaction et l’édition. Cela a abouti à la rédaction et à la production des manuels mathématiques CP1, CP2 et des manuels Education civique et morale & éducation pour la paix. Durant la 2ème phase, le financement a porté sur la rédaction des manuels Mathématiques cités dans le tableau ci-dessous. Mais seuls les manuels de Mathématiques CE1 et CE2 ont été finalisés et produit durant cette phase. Les autres manuels doivent être finalisés par le Ministère. 56 Tableau 3 : Liste des curricula qui ont fait l’objet d’un atelier de révision financé par PRAEBASE Disciplines 1ère phase 2ème phase Initiation à la production CE2 Mathématiques CP1, CP2 CE1, CE2 ECMP (Education civique et morale & éducation pour la paix) CP, CE, CM 6ème Education à la vie familiale (EVF) CE2 Technologie CE2 Sciences physiques 6e Sciences physiques 5e Education musicale CP, CE, CM Education artistique CE2 Introduction des tests standardisés 33. A travers la deuxième phase du projet PRAEBASE, le Ministère de l’enseignement primaire, secondaire et de l’alphabétisation (MEPSA) a reçu pendant un an (de mai 2012 à mai 2013) un appui technique d’un bureau d’étude canadien 41 en matière de conception d’un dispositif de pilotage du système éducatif à travers l’élaboration et l’analyse de tests standardisés. Une équipe de vingt cadres nationaux a été constitué et formé dans le domaine de l’évaluation des acquis des élèves s’appuyant sur des tests standardisés. Cette équipe est constituée par plusieurs cadres issus de directions différentes : INRAP, DEPS, IGEPSA, DGEB et DFC et un cadre de l’université. Les appuis ont porté sur les cinq grandes étapes clés pour la mise en œuvre des tests standardisés : (i) élaboration des tests, (ii) échantillonnage, (iii) administration des tests et questionnaires, (iv) traitement des données et (v) analyse des données. L’équipe nationale a retenu comme objet à évaluer les acquis scolaires des élèves de CM1, en français et en mathématiques, tel qu’indiqué dans les termes de référence du projet. Au total, 100 classes ont été identifiées via la technique de l’échantillonnage. Sur 2072 écoles de la base de sondage, 100 écoles ont été identifiées à travers les douze départements scolaires du Congo. Du point de vue de la population scolaire, 1942 élèves ont passé le test (20 par classe). Des tests ont également été administrés aux enseignants et aux directeurs des écoles. Composante 4: Soutien aux jeunes non scolarisés et à la scolarisation des peuples autochtones 34. La composante 4 a pour objectifs d’expérimenter des activités pour offrir des opportunités d’éducation et de formation formelles et non formelles aux jeunes âgés de 14 à 19 ans, et d’améliorer la conception, l’efficacité et la cohérence globale des programmes en soutenant la scolarisation des peuples autochtones. Elle comprend deux types d’activités (i) l’élaboration de programmes pilotes en faveur des jeunes déscolarisés, et (ii) l’élaboration de programmes d’éducation pour les enfants autochtones. Programmes pilotes jeunes déscolarisés 35. Durant la phase 1 du projet 512 jeunes ont été formés dans des ateliers moyennant une contrepartie financière de 56.000 FCFA / an pour le maître Artisan ainsi que l’achat de la matière d’œuvre et de l’outillage. Durant la deuxième phase du projet, le programme pour les jeunes déscolarisés s’est concentré dans les villes de Dolisie et de Pointe Noire. Au total 1423 jeunes déscolarisés (sur une cible initiale de 1600 – soit 89%) ont bénéficié d’une formation professionnelle. Le processus de sélection des maîtres artisans a été le même que durant la première phase, à savoir par appel à manifestation d’intérêt. En revanche, les critères de sélection des apprenants ont été relevé avec notamment (i) l’obligation d’avoir le CEP ou le niveau sixième, (ii) l’obligation des parents de signer un engagement parental mentionnant qu’ils paient les frais de déplacement et la nutrition durant toute la 41 Bureau d’étude Education Internationale 57 durée de la formation. Durant cette phase, le montant versé aux maîtres artisans a été revalorisé à 100.000 FCFA. En amont de la formation, des organes de concertation dénommés « comités départementaux de sélection pour les jeunes déscolarisés (CDS)» ont été mis en place dans les localités de mise en œuvre du programme dont le rôle était de : (i) sélectionner les jeunes déscolarisés susceptibles de bénéficier l’appui ; (ii) sélectionner les ateliers susceptibles d’assurer la formation des jeunes déscolarisés. 36. La matière d’œuvre et des kits de formation ont été acquis et distribués dans toutes les filières et à tous les jeunes apprentis placés dans les ateliers de formation professionnelle. Au total, 115 maitres artisans des filières de couture, coiffure, soudure, mécanique auto, menuiserie et agropastoral ont pris part à cette formation. Les modules développés pour cette formation ont été axés sur : (i) La fiche de suivi des jeunes déscolarisés ; (ii) Tenue d’un atelier et gestion financière d’un atelier ; (iii) Rappels de quelques notions sur l’esprit d’entreprise ; (iv) Conseils avertis à un entrepreneur particulier ; (v) La gestion financière ; (vi) La gestion de stock ; (vii) Le calcul du prix de revient d’un produit ou d’une prestation ; (viii) La fixation du prix de vente d’un produit ou d’un service ; (ix) La gestion du budget domestique ; et (x) La gestion rationnelle de la micro entreprise. Plusieurs ateliers ont été organisés pour renforcer les capacités des conseillers techniques d’alphabétisation œuvrant à Dolisie et à Pointe Noire. Ces ateliers ont également permis d’élaborer et de valider des outils permettant à ces derniers de mieux suivre les jeunes apprenants. Au total les compétences de quarante conseillers techniques d’alphabétisation (CTA) 42 ont été renforcées. Par ailleurs, le suivi professionnel des jeunes déscolarisés formés lors de la première phase du PRAEBASE a constitué un élément important de cette composante du projet. A noter que sur les 512 jeunes formés, 318 jeunes exerçaient toujours dans les ateliers les ayant formés (soit 62%). Durant la 2ème phase, sur 1423 jeunes formés, 30% ont été insérés sur le marché du travail soit 436 jeunes et 124 jeunes ont abandonné. L’étude réalisée sur les coûts de la formation professionnelle des jeunes dans 5 filières (couture, coiffure, menuiserie, soudure et mécanique) fait ressortir que les couts de formation proposés par le PRAEBASE sont inférieurs aux pratiques existantes, ce qui est encourageant au regard de sa possible pérennisation43. Programmes d’éducation des enfants autochtones 37. Ce volet a pour objectif de rechercher et de mettre en œuvre des approches efficaces pour développer la scolarisation des enfants autochtones. Les activités mises en place ont débuté lors de la phase 1 du projet PRAEBASE avec comme principal résultat l’élaboration de la Stratégie Nationale d’éducation des populations autochtones du Congo. Cette stratégie a permis de créer un cadre fédérateur pour l’ensemble des partenaires et des ministères qui interviennent en faveur de la scolarisation des enfants autochtones. Des activités de vulgarisation et de sensibilisation sur cette stratégie ont été menées au démarrage de la phase 2 du projet PRAEBASE. Le programme d’activité se concentre dans quatre départements : Niari, Pool, Plateaux et Cuvette-Ouest. La première phase du projet a permis l’inscription de 1642 enfants autochtones. Toutefois, il a été constaté un taux de rétention faible avec seulement 46% des enfants qui sont restés scolarisés. Durant la phase 2 du projet PRAEBASE, le nombre d’enfants inscrits est passé à 4030 (sur une cible de 4000) et le taux de rétention a considérablement augmenté avec un taux de 76%. Les meilleurs résultats obtenus dans la phase 2 sont essentiellement liés à l’amélioration de l’offre et de la demande scolaire avec notamment : (i) La construction d’écoles financées par le projet PRAEBASE proches des populations autochtone ; (ii) La fourniture de cantines scolaires par le partenaire IPHD et PAM ; (iii) Des actions de sensibilisation rapprochées avec le recrutement d’une ONG par département. Lors de la première phase, une seule ONG avait été recrutée pour couvrir les 4 départements et sa mission se limitait à la distribution des kits ; (iv) Une loi a été promulguée par le gouvernement en février 2011 protégeant les populations autochtones dans laquelle un article encourage ces populations à envoyer leurs enfants à l’école. 38. Les kits 44 et uniformes scolaires acquis par le PRAEBASE ont été distribués aux enfants autochtones. Le tableau ci-après présente les effectifs des bénéficiaires dans les quatre départements : Afin de renforcer l’appropriation du projet par les structures décentralisées, quatre ateliers 42 20 à Pointe Noire et 20 à Dolisie 43 Cf ; Rapport sur « l’analyse des coûts de la formation ». Consultant Audrey Nkolo Sahou – Juin 2013 44 Le kit scolaire est composé : Paire de sandales, Uniforme scolaire, Gomme, Ardoise, Cahier, Règle, Stylos à bille et Crayon 58 départementaux ont été organisés afin de valider les données de scolarisation des enfants autochtones. L’objectif visé de ces ateliers était de faire le point des actions menées par les ONG dans les départements et d’échanger les expériences. Résultats financiers 39. Les rapports financiers produits par l’Unité de Gestion et les commentaires de la Banque sur ces rapports ne font apparaître aucun problème particulier. Le taux d’exécution financière est de 97% . PARTIE / ACTIVITE Taux d’exécution financière 1. RENFORCEMENT DES CAPACITES 45 101% 2. INFRASTRUCTURES ET GESTION DES 98% ECOLES 3. AMELIORATION DE LA QUALITE DE 108% L'EDUCATION 4. PROGRAMMES SPECIAUX 70% TOTAL GENERAL DU PROJET 97% 45 Les frais de fonctionnement de l’Unité de projet apparaissent dans la composante A de la phase 2 alors qu’il y avait une rubrique spécifique séparée durant la phase 1 59 REPUBLIC OF CONGO Support to Basic Education Project – PRAEBASE Annex 6. List of Supporting Documents Rapport de suivi financier 2ème trimestre 2005 (1er avril – 30 juin 2005) Rapport de suivi financier 3ème trimestre 2005 (1er juillet – 30 septembre 2005) Rapport de suivi financier 4ème trimestre 2005 (1er octobre – 31 décembre 2005) Rapport de suivi financier 1er trimestre 2006 (1er janvier – 31 mars 2006) Rapport de suivi financier 2ème trimestre 2006 (1er Avril – 30 juin 2006) Rapport de suivi financier 3ème trimestre 2006 (1er juillet – 30 septembre 2006) Rapport de suivi financier 4ème trimestre 2006 (1er octobre – 31 décembre 2006) Rapport de suivi financier 1er trimestre 2007 (1er janvier – 31 mars 2007) Rapport de suivi financier 2ème trimestre 2007 (1er Avril – 30 juin 2007) Rapport de suivi financier 3ème trimestre 2007 (1er juillet – 30 septembre 2007) Rapport de suivi financier 4ème trimestre 2007 (1er octobre – 31 décembre 2007) Rapport de suivi financier 1er trimestre 2008 (1er janvier – 31 mars 2008) Rapport de suivi financier 2ème trimestre 2008 (1er Avril – 30 juin 2008) Rapport de suivi financier 3ème trimestre 2008 (1er juillet – 30 septembre 2008) Rapport de suivi financier 4ème trimestre 2008 (1er octobre – 31 décembre 2008) Rapport de suivi financier 1er trimestre 2009 (1er janvier – 31 mars 2009) Rapport de suivi financier 2ème trimestre 2009 (1er Avril – 30 juin 2009) Rapport de suivi financier 3ème trimestre 2009 (1er juillet – 30 septembre 2009) Rapport de suivi financier 4ème trimestre 2009 (1er octobre – 31 décembre 2009) Rapport de suivi financier 1er trimestre 2010 (1er janvier – 31 mars 2010) Rapport de suivi financier 2ème trimestre 2010 (1er Avril – 30 juin 2010) Rapport de suivi financier 3ème trimestre 2010 (1er juillet – 30 septembre 2010) Rapport de suivi financier 4ème trimestre 2010 (1er octobre – 31 décembre 2010) Rapport de suivi financier 1er trimestre 2011 (1er janvier – 31 mars 2011) Rapport de suivi financier 2ème trimestre 2011 (1er Avril – 30 juin 2011) Rapport de suivi financier 3ème trimestre 2011 (1er juillet – 30 septembre 2011) Rapport de suivi financier 4ème trimestre 2011 (1er octobre – 31 décembre 2011) Rapport de suivi financier 1er trimestre 2012 (1er janvier – 31 mars 2012) Rapport de suivi financier 2ème trimestre 2012 (1er Avril – 30 juin 2012) Rapport de suivi financier 3ème trimestre 2012 (1er juillet – 30 septembre 2012) Rapport de suivi financier 4ème trimestre 2012 (1er octobre – 31 décembre 2012) Rapport de suivi financier 1er trimestre 2013 (1er janvier – 31 mars 2013) Rapport de suivi financier 2ème trimestre 2013 (1er Avril – 30 juin 2013) Rapport définitif d’audit des états financiers au 31 décembre 2010, juin 2011 Rapport final d’audit technique semestriel des constructions, août 2012 Rapport de progrès de la phase II, mai 2013 Rapport de fin du second programme (rapport final intégrant les résultats jusqu’à fin juin en cours de finalisation) Rapport d’évaluation volet « gestion communautaire », juin 2013 60 Audit technique des constructions scolaires : prestation du maître d’ouvrage délégué du PRAEBASE (Phase II), septembre 2013 Audit technique des constructions scolaires : prestation du maître d’ouvrage délégué du PRAEBASE (Phase II), rapport définitif, octobre 2013 Décret N°2013-280 du 25 juin 2013, portant création, attributions et organisation du comité de gestion et de développement communautaire (CDGC) Liste du personnel de la partie B phase I Liste du personnel de la partie B phase II Contrat entre le Ministère de l’enseignement primaire secondaire et de l’alphabétisation et l’UNDP, volume 1, 3 à novembre 2009 Evolution du Staff du projet de la phase I à la phase II Projet Budget 2007 Rapport d’activités premier trimestre (période janvier-mars) 2006 Rapport d’activités deuxième trimestre (période avril-juin) 2006 Rapport d’activités troisième trimestre (période juillet-septembre) 2006 Rapport d’activités premier trimestre (période janvier-mars) 2007 Rapport d’activités deuxième trimestre (période avril-juin) 2007 Rapport d’activités troisième trimestre (période juillet-septembre) 2007 Rapport d’activités quatrième trimestre (période octobre-décembre) 2007 Rapport annuel d’activités 2007 (édité en janvier 2011) Rapport d’activités premier trimestre (période janvier-mars) 2008 Rapport d’activités deuxième trimestre (période avril-juin) 2008 Rapport d’activités troisième trimestre (période juillet-septembre) 2008 Rapport d’activités quatrième trimestre (période octobre-décembre) 2008 Rapport annuel d’activités 2009 (édité en décembre 2009) Rapport annuel d’activités 2010 (édité en janvier 2011) Rapport d’activités premier trimestre (période janvier-mars) 2011 Rapport d’activités deuxième trimestre (période avril-juin) 2011 Rapport d’activités troisième trimestre (période juillet-septembre) 2011 Rapport d’activités quatrième trimestre (période octobre-décembre) 2011 Rapport d’activités premier trimestre (période janvier-mars) 2012 Rapport d’activités deuxième trimestre (période avril-juin) 2012 Rapport d’avancement du PRAEBASE (juin 2005-Février 2008), mars 2008 Rapport d’évaluation sur la scolarisation des enfants autochtones dans les Départements des Plateaux, du Niari, du Pool et de la Cuvette-ouest, juin 2013 Rapport d’évaluation sur la scolarisation des enfants autochtones en République du Congo Rapport d’évaluation de la formation et de l’insertion des jeunes déscolarisés, juin 2009 Rapport d’évaluation externe du programme de formation réalisée au cours de l’année 2010, mars 2012 Rapport bilan de fin de l’avenant N°1 au contrat de l’Agence de Gestion Fiduciaire du Projet (AGF) sur la période de mars 2007 à Février 2008 Rapport d’état sur le système éducatif national (RESEN), janvier 2007 Rapport d’état sur le système éducatif national (RESEN), cadrage sectoriel, juin 2007 Rapport d’état sur le système éducatif national (RESEN), Rapport de mission, mars 2008 61 Rapport final l’analyse organisationnelle du MEPSA et préparation des Plans Départementaux de l’éducation, avril 2007 Rapport technique de l’atelier national de validation des données et expériences départementales de scolarisation des enfants pygmées, décembre 2006 Rapport de mission sur l’introduction et développement des tests standardisés au primaire et au secondaire 1er cycle, septembre 2012 Accord de Don de développement entre la République du Congo et l’IDA, août 2004 Aide-mémoire mission de suivi et d’appui à la mise en œuvre (8-16 mars 2012) A ces documents s’ajoutent tous les ISR et AM qui ont été produits durant les phases de préparations et d’exécution du projet (2004 à 2013). 62 IBRD 33390 14°E 16°E 18°E CENTRAL AFRICAN 4°N REPUBLIC 4°N CONGO CAMEROON Ib To en Batouri ga Bétou To Mo tab Ebolowa a 2°N Souanké Ngoko LIKOUALA 2°N Sembé Ouésso Impfondo Epéna o ng Co SANGHA C o n g o Sangh Li ko Le a ua To Mambili ng la Lambaréné oué WESTERN GABON gi CUVETTE Uban 0° Etoumbi 0° Lik ou To CUVETTE ala Booué Owando Kouyou Liranga Ewo B a s i n Lake Tumba a im To Mossaka Al Lambaréné Okoyo P L AT E A U X o ng Gamboma i Co én 2°S DEMO CRAT IC 2°S k N Mbinda s REPUBLIC é Lake s Ngo Loué Djambala O F CO NGO Mai-Ndombe NIARI Zanaga Batéké Fim i Mossendjo Kwa Plateau Ngabé ué 0 20 40 60 80 100 Kilometers LÉKOUMOU D jo Makabana POOL Ni Sibiti 0 20 40 60 80 100 Miles ari lou KOUILOU Koui 4°S Nkola 4°S Dolisie Madingou BRAZZAVILLE 18°E BOUENZA Kayes Kinkala CO N GO To Kikwit Pointe-Noire AT L AN T IC SELECTED CITIES AND TOWNS CABINDA OCEAN (ANGOLA) REGION CAPITALS To Matadi To This map was produced by Lusanga NATIONAL CAPITAL the Map Design Unit of The World Bank. The boundaries, RIVERS colors, denominations and To any other information shown 6°S on this map do not imply, on M'banza Congo MAIN ROADS the part of The World Bank RAILROADS Group, any judgment on the legal status of any territory, ANGOLA or any endorsement or REGION BOUNDARIES acceptance of such boundaries. 12°E 14°E 16°E INTERNATIONAL BOUNDARIES SEPTEMBER 2004