Document of The World Bank

Report No. 26245

PROJECT PERFORMANCE ASSESSMENT REPORT

GUINEA

20 YEARS OF IDA ASSISTANCE

SECOND EDUCATION PROJECT (CR. 1341) EDUCATION SECTOR ADJUSTMENT CREDIT (CR. 2155)

EQUITY AND SCHOOL IMPROVEMENT (CR. 2719) HIGHER EDUCATION MANAGEMENT SUPPORT PROJECT (CR. 2787)

PRE-SERVICE TEACHER EDUCATION PROJECT (CR. 31 19)

June 26,2003

Sector and Thematic Evaluation Group Operations Evaluation Department

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Currency Equivalents (annual averages) Currency Unit = Guinean Francs (GNF)

US$l.OO = GNF978 (February 1995) GNF l = USSO.001 (appraisal) US$l.OO = GNF1737 (2000) US$l.OO= GNF1917 (2001)

Abbreviations and Acronyms

DAAF GDP I C R IDA LIL MIS NGO OED PASE PPAR" P C U QAG TVET UNESCO VHF

Direction Administrative des Affaires Financieres Gross domestic product Implementation Completion Report International Development Association Learning and Innovation Lending Management Information System Nongovernmental organization Operations Evaluation Department Programme d' Ajustement Sectoriel de 1'Education Project Perfonnance Assessment Report Project Coordination Unit Quality Assurance Group Technical and vocational education and training United Nations Educational, Scientific, and Cultural Organization Very high frequency

* As o f July 1, 2001, Project Performance Audits have been renamed Project Performance Assessments

Fiscal Year

Government: July 1-June 30

Director-General, Operations Evaluation : Mr. Gregory K. Ingram Director (Acting), Operations Evaluation Department : Mr. N i l s Fostvedt Manager, Sector and Thematic Evaluation : Mr. A l a i n Barbu Task Manager : Ms . Helen Abadzi

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OED Mission: Enhancing development effectiveness through excellence and independence in evaluation.

About this Report The Operations Evaluation Department assesses the programs and activities of the World Bank for two

purposes: first, to ensure the integrity of the Bank’s self-evaluation process and to verify that the Bank‘s work is producing the expected results, and second, to help develop improved directions, policies, and procedures through the dissemination of lessons drawn from experience. As part of this work, OED annually assesses about 25 percent of the Bank‘s lending operations. In selecting operations for assessment, preference is given to those that are innovative, large, or complex; those that are relevant to upcoming studies or country evaluations; those for which Executive Directors or Bank management have requested assessments; and those that are likely to generate important lessons. The projects, topics, and analytical approaches selected for assessment support larger evaluation studies.

A Project Performance Assessment Report (PPAR) is based on a review of the Implementation Completion Report (a self-evaluation by the responsible Bank department) and fieldwork conducted by OED. To prepare PPARs, OED staff examine project files and other documents, interview operational staff, and in most cases visit the borrowing country for onsite discussions with project staff and beneficiaries. The PPAR thereby seeks to validate and augment the information provided in the ICR, as well as examine issues of special interest to broader OED studies.

Each PPAR is subject to a peer review process and OED management approval. Once cleared internally, the PPAR is reviewed by the responsible Bank department and amended as necessary. The completed PPAR is then sent to the borrower for review; the borrowers’ comments are attached to the document that is sent to the Bank‘s Board of Executive Directors. After an assessment report has been sent to the Board, it is disclosed to the public.

About the OED Rating System

The methods offer both rigor and a necessary level of flexibility to adapt to lending instrument, project design, or sectoral approach. OED evaluators all apply the same basic method to arrive at their project ratings. Following is the definition and rating scale used for each evaluation criterion (more information is available on the OED website: http://worldbank,org/oed/eta-mainpage. html).

Relevance of Objectives: The extent to which the project‘s objectives are consistent with the country’s current development priorities and with current Bank country and sectoral assistance strategies and corporate goals (expressed in Poverty Reduction Strategy Papers, Country Assistance Strategies, Sector Strategy Papers, Ope rational Policies ). Possible ratings: High, Substantial , Modest, N eg I ig i ble.

Efficacy: The extent to which the project’s objectives were achieved, or expected to be achieved, taking into account their relative importance. Possible ratings: High, Substantial, Modest, Negligible.

Efficiency: The extent to which the project achieved, or is expected to achieve, a return higher than the opportunity cost of capital and benefits at least cost compared to alternatives. Possible ratings: High, Substantial, Modest, Negligible. This rating is not generally applied to adjustment operations.

Unlikely, Highly Unlikely, Not Evaluable.

to make more efficient, equitable and sustainable use of its human, financial, and natural resources through: (a) better definition, stability, transparency, enforceability, and predictability of institutional arrangements and/or (b) better alignment of the mission and capacity of an organization with its mandate, which derives from these institutional arrangements. Institutional Development Impact includes both intended and unintended effects of a project. Possible ratings: High, Substantial, Modest, Negligible.

Outcome: The extent to which the project’s major relevant objectives were achieved, or are expected to be achieved, efficiently. Possible ratings: Highly Satisfactory, Satisfactory, Moderately Satisfactory, Moderately Unsatisfactory, Unsatisfactory, Highly Unsatisfactory.

Bank Performance: The extent to which services provided by the Bank ensured quality at entry and supported implementation through appropriate supervision (including ensuring adequate transition arrangements for regular operation of the project). Possible ratings: Highly Satisfactory, Satisfactory, Unsatisfactory, Highly unsatisfactory.

quality of preparation and implementation, and complied with covenants and agreements, towards the achievement of development objectives and sustainability. Possible ratings: Highly Satisfactory, Satisfactory, Unsatisfactory, Highly unsatisfactory.

The time-tested evaluation methods used by OED are suited to the broad range of the World Bank’s work.

Sustainability: The resilience to risk of net benefits flows over time. Possible ratings: Highly Likely, Likely,

Institutional Development Impact: The extent to which a project improves the ability of a country or region

Borrower Performance: The extent to which the borrower assumed ownership and responsibility to ensure

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Contents Principal Ratings ................................................................................................................ v

Key Staff Responsible ...................................................................................................... vi

Preface .............................................................................................................................. vii

Summary ........................................................................................................................... i x

1 .

2 .

3 .

4 .

5 .

Background .................................................................................................................. 1

Project Objectives. ................................................................................................... 2

Education 11 (FY83) ................................................................................................. 4

Education Sector Adjustment Credit (FY90) ........................................................... 5

Equity and School Improvement Project (FY95) ..................................................... 6

Pre-Sewice Teacher Education Project (FY99) ..................................................... -8

Implementation of the Assessed Projects ................................................................... 3

Higher Education Technical Assistance Project (FY96) ......................................... 7

Results ........................................................................................................................... 9

Outcomes .................................................................................................................. 9

Ratings ........................................................................................................................ 12

Institutional Development Impact .......................................................................... 12

Sustainability .......................................................................................................... 13

Bank Performance ................................................................................................. 13

Borrower Performance .......................................................................................... 14

Issues for Future Consideration ............................................................................... 14

A Needfor Improved Textbook Strategy ................................................................ 1 4

Language of Instruction ........................................................................................ -16

Cost recovevy and requirements in Vocational-Technical Education ................... 17

Lessons ................................................................................................................... 17

Annex A . Project Activities ............................................................................................. 19

Annex B . Basic Data Sheet .............................................................................................. 27

This report was prepared by Helen Abadzi. who assessed the project in February 2002 . The report was edited by Wi l l i am B . Hurlbut. and Pilar Barquero provided administrative support .

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Figures Figure 1. Evolution o f Gross Primary-School Enrollments since 1979.. .......................... 10

Tables

Table 1. Education Lending in Guinea .............................................................................. 1 Table 2. M a i n Objectives o f Completed Projects in Education ......................................... 2

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Principal Ratings ICR* ES* PPAR

Second Education Project (Cr. 1341-GN) 1983-1 990 Outcome Unsatisfactory Not rated Moderately satisfactory Sustainability Unlikely Not rated Likely Institutional Negligible Not rated Modest Development Bank Performance Not rated Not rated Satisfactory Borrower Not rated Not rated Satisfactory Performance Education Sector Adjustment Credit (Cr. 2155-GN) 1990-1994 Outcome Highly satisfactory Highly satisfactory Highly satisfactory Sustainability Likely Likely Likely Institutional Partial (modest) Modest Modest Development Bank Performance Highly satisfactory Highly satisfactory Highly satisfactory Borrower Highly satisfactory Highly satisfactory Highly satisfactory Performance Equity and School Improvement (Cr. 2719-GN) 1995-2002 Outcome Not available (1) Not available Satisfactory Sustainability Not available Not available Likely Institutional Not available Not available Modest Development Bank Performance Not available Not available Satisfactory Borrower Not available Not available Satisfactory Performance Higher Education Management Support Project (Cr. 2787-GN) 1995-2001 Outcome Satisfactory Satisfactory Satisfactory Sustainability Likely Likely Likely Institutional Substantial Substantial Substantial Development Bank Performance Satisfactory Satisfactory Satisfactory Borrower Satisfactory Satisfactory Satisfactory Performance Pre-Service Teacher Education Project (Cr. 3119-GN) 1998-2002

Outcome Not available (1) Not available Satisfactory Sustainability Not available Not available Likely Institutional Not available Not available Substantial Development Bank Performance Not available Not available Satisfactory Borrower Not available Not available Highly satisfactory Performance * The Implementation Completion Report (ICR) i s a self-evaluation by the responsible operational division of the Bank. The Evaluation Summary (ES) i s an intermediate OED product that seeks to independently verify the findings of the ICR. (1) ICR not yet issued.

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Key Staff Responsible Project Task Manager/Leader Division Chief/ Country Director

Sector Director Second Education Project (Cr. 1341-GN)

Appraisal Djamaleddin Rouag Wadi Haddad Hans Fuchs Completion Chris Shaw Michel Palein Michael Gillette

Appraisal Chris Shaw Michel Palain Michael Gillette Completion Robert Prouty Ok Pannenborg Olivier Lafourcade

Appraisal Robert Prouty Ok Pannenborg Jean-Luis Sarbib Completion Aminata Maiga Alexander Abrantes Mamadou Dia

Appraisal Robert Prouty Ok Pannenborg Jean-Luis Sarbib Completion Meskerem Mulatu Alexander Abrantes Mamadou Dia

Appraisal Penelope Bender Nicholas Burnett Mamadou Dia Completion Mercy Tembone Alexander Abrantes Mamadou Dia

Education Sector Adjustment Credit (Cr. 2155-GN)

Equity and School Improvement (Cr. 2719-GN)

Higher Education Management Support Project (Cr. 2787-GN)

Pre-Service Teacher Education Project (Cr. 31 19-GN)

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Preface Attached i s a Performance Assessment Report (PAR) on five education projects in

Guinea. The Second Education Project (Cr. 1341-GN), approved for a credit ofUS$11 mi l l ion equivalent on March 29, 1983, closed on December 3 1, 1990, after extensions totaling two years; US$700,000 was canceled. The African Development Fund and Saudi Fund provided parallel financing o f US$11.7 and US$4 million, respectively. The Education Sector Adjustment Credit (Cr. 21 55-GN), approved for a credit o f US$21.6 million equivalent in June 1990, closed on June 30, 1994, after a one-year extension and was h l l y disbursed. The U.S. Agency for Intemational Development (USAID) provided parallel financing o f US$29.1 million. Equity and School Improvement (Cr. 2719-GN), approved for a credit o f US$43 million equivalent in June 1995, closed on June 30,2002, after a one-year extension; a balance o f US$8.9 million was canceled. The Higher Education Management Support Project (Cr. 2787-GN), approved for a credit o f US$6.6 mi l l ion equivalent in November 1995, closed on December 3 1,2001, after a one-year extension; a balance o f US$590,000 was canceled. The Pre-Service Teacher Education Project (Cr. 3 119-GN), approved for a credit o f US$4.1 mi l l ion equivalent in M a y 1998, closed as scheduled on March 3 1 , 2002; US$0.2 mil l ion was canceled.

The assessments were conducted to study the effectiveness o f Bank strategy in a country that had one o f the lowest school enrollment rates in the world as wel l as considerable determination to bring about sustained change.

The PPAR i s based on the following sources: Project or Implementation Completion Reports (ICRs), Staff Appraisal Reports ( S A R s ) , Loan Agreements for the projects, and project files, particularly the supervision reports. An OED mission visited Guinea in December 2002 to collect other pertinent information. The author thanks the government officials who received the mission for their extensive cooperation.

Following standard OED procedures, copies o f the draft PPAR were sent to the relevant government officials and agencies for their review and comments, but none were received.

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Summary This i s the Guinea Performance Assessment Report (PPAR) on five education

projects in Guinea. The Second Education Project, approved for a credit o f US$11 million equivalent on March 29, 1983, closed on December 3 1, 1990, after extensions totaling two years; US$700,000 was canceled. The African Development Fund and Saudi Fund provided parallel financing o f US$11.7 and US$4 million, respectively. The Education Sector Adjustment Credit, approved for US$21.6 million equivalent in June 1990, closed o n June 30, 1994, after a one-year extension and was fully disbursed. The U.S. Agency for Intemational Development (USAID) provided parallel financing o f US$29.1 mil l ion. Equity and School Improvement, approved for US$43 mi l l ion equivalent in June 1995, closed on June 30,2002, after a one-year extension; a balance o f US$8.9 million was canceled. The Higher Education Management Support Project, approved for US$6.6 mi l l ion equivalent in November 1995, closed on December 31, 2001, after a one-year extension; a balance o f US$590,000 was canceled. The Pre- Service Teacher Education Project, approved for US$4.1 million equivalent in M a y 1998, closed as scheduled on March 31,2002; US$0.2 mi l l ion was canceled.

Whi le each project had i t s own specific objectives, the common goals were to increase access to primary and vocational education, train teachers, and improve the quality o f education. Overall, activities have been implemented as expected, including innovative components. Most objectives were met or exceeded, and they have been relevant to the human resource development needs o f the country and the goals o f the Bank’s Education for All strategy.

The projects contributed to a large increase in the gross enrollment ratio from 32 percent in 1991 to 72 percent in 2002, particularly for girls, whose enrollment increased from 19.7 percent in 1991 to 62 percent in 2002. Project-financed buildings including functional, though underused, vocational-technical institutions, have been used for generations o f students and educators. The many staff who received fellowships in the early 1980s have since staffed educational institutions. Successful systems have been implemented to produce reliable educational statistics and train teachers.

However, the projects faced financial management problems. Irregularities in school construction and textbook acquisition have resulted in suspended disbursements and wasted funds. There i s currently an almost total lack o f textbooks in schools, partly because o f theft. Without textbooks, al l levels o f the system face a severe limitation in the provision and processing o f information, and students learn very little. At least half the time o f any class observed i s taken up with copying and recopying. Limited French knowledge make i t hard to transmit complex concepts in class. Student assessment results suggest that the vast majority students in grade 6 graduate without having learned basic skills. The limited student sk i l ls have made it difficult to train teachers within short periods o f time.

On balance, project outcomes were rated satisfactory. Though most objectives o f Education I1 were not met, the project was rated moderately satisfactory because the infrastructure and staff training it provided has increased institutional capacity in the long

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run. The Education Sector Adjustment Credit was rated highly satisfactory because nearly all its pol icy conditions were met, and their effect was lasting. Institutional development for the Pre-service Teacher Training Project was rated substantial but for al l others it was rated modest. Sustainability was rated l ikely for all projects. Bank performance was rated unsatisfactory for Education I1 (Bank did not effectively intervene to resolve problems) and satisfactory for the other projects. Borrower performance was rated unsatisfactory for Education 11, highly satisfactory for the Education Sector Adjustment Credit and for the Pre-service Teacher Training Project; i t was rated satisfactory for the remaining three.

Experience with the projects confirms OED lessons fi-om education projects:

0 Policy dialogue and project activities must stay focused on improving instructional effectiveness and providing students with basic ski l ls. Activities aimed at strength- ening management and procuring educational commodities may be necessary but they are not sufficient for the improvement o f learning and quality in educational systems. Providing mass education under clearly inadequate instructional condi- tions may graduate hnctional illiterates and benefit only a minority o f students.

Textbooks are crucial providers o f information in schools. If they are unavailable or if students cannot study from them sufficiently, the effectiveness o f the educational investments i s reduced. Procurement methods and plans must aim at making large numbers o f textbooks available at an affordable cost and free to the poor. Textbook management must build on the strengths o f the private sector and o f community associations.

Sustained investment in human resources can improve implementation capacity o f specific institutions. For example, foreign fellowships for persons who retum and devote their career to the agencies they were expected to serve may result in a considerable cadre o f trained and competent staff.

In earlier decades, the Bank supported vocational training schools in many countries, which often function with few students, high unit costs, and outdated equipment and curricula. Bank investments will be best used if pol icy dialogue i s focused toward modemizing courses, generating income, and catering to the populations likely to be interested in vocational training.

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Gregory K. Ingram Director- General Operations Evaluation

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1. Background 1. decade the primary school enrollment rate increases necessary to achieve universal primary education in the near future. Despite a weak macroeconomic environment, the government worked out approaches to solving various problems and forged ahead. This has included some innovative approaches, such as instruction in national languages (though i t was eventually abandoned in favor o f French), preventive health activities in schools, teacher-driven school grants, instruction v ia interactive radio, sample-based assessment o f school learning, gender equity committees, NGO-led construction, and reform o f teacher education.

Guinea i s one o f the few low-income countries to have sustained over the past

2. who focused on sustainable development and strong national institutions. Their efforts produced "Guinea 20 10," a document o f national consensus that emphasized decentralization and community involvement. In education, Guinea adopted the National Program for Education for All in 1990 and set goals to expand the gross primary school enrollment rate f rom 28 percent to 53 percent by the year 2000, to increase the efficiency o f resource use within the sector, to increase overall government support for basic education, and to improve the quality o f education. The government's willingness to take action attracted considerable donor support from USAID, Afr ican Development Bank (ADB), Islamic Development Bank, Saudi Fund, and Afr ican Development Fund (a Washington-based NGO). The Bank has coordinated donor efforts and pol icy dialogue since the 1980s. The larger IDA-financed projects have had multiple donor participation, particularly in building c iv i l works.

The government that succeeded Sekou Toure in 1986 included several visionaries

3. Bank role. The Bank has designed i t s country assistance portfolio for Guinea around three main areas: growth (mining, agriculture), community involvement, and institutional capacity incentives. In education, i t financed seven projects that were completed between 1983 and 2002 (Table 1).

Table 1. Education Lending in Guinea Completed Projects Credit No. Project ID Approval Closing Credit Project Canceled

N Amt. Cost US$m US$m US$m

Education I (vocational-technical) 849 PO01023 1979 6/30/1983 8 9.9 0

Education Sector Adjustment Program 2155 PO01046 1990 6/30/1994 21.6 59.7 0 Equity and School Improvement 27190 PO01087 1995 6/30/2001 43 53 8.9 Higher Education Management 27870 PO01090 1996 12/31/2001 6.6 7.4 0.6 Pre-Service Teacher Education 31190 PO57188 1999 3/31/2002 4.1 4.34 0.2 Total 94.3 164.34 Ongoing Projects Education for All 2001 6/30/2005 70 420.14

Education II (multiple subsectors) 1341 PO01031 1983 12/31/1990 11 30 0.7

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Project Objectives

4. Bank lending in education has focused on increasing access and improving quality and management at al l levels, including higher education. Project objectives show that in i t s earlier stages, the Bank was concerned with increasing access and developing the human resources that would teach in the sector and manage it. As in many countries, lending in the 1970s focused on training vocational-technical education teachers rather than students, the main goal o f the First Education Project (Table 2), assessed by OED in 1986.' Concems with quality o f primary education became more prominent after 1995 and are prominent in the Education for All project, currently under implementation.

Table 2. Main Objectives of Completed Projects in Education Typology of Objectives1 Quality Access Efficiency Teacher Training Project Name Managemen ff Planning Education I (PPAR in Direct access for Project management, Vocational teacher 1986, outcome vocational teacher planning for the Ministry of training satisfactory) training Education Planning office Education II Improve the quality Reduce access to Develop manpower and Improve vocational

graduation and university of primary education secondary school quantitative planning school training

capacity required to improve external efficiency

Education Sector Adjustment Credit (PASE I) ( policy reforms to prevent major deterioration)

Equity and School Improvement Project ( PASE II)

Increase the relevance of education to employment prospects and the economic needs of the country Improve teaching and student learning in primary and lower secondary schools

Launch a primary school construction and formulation and managerial rehabilitation program capacity Address gender issues Rationalize public with programs of special emphasis

Improve sector strategy

expenditure in the sector

Increase primary school Strengthen system enrollment and management completion rates, with a strong focus on girls and students in rural areas

Higher Education Increase institutional Technical Assistance autonomy, cost- Project effectiveness,

relevance for economic develoDment

Improve cost-effectiveness Increase relevance for economic development increase institutional development

PreSetvice Teacher Enhance quality by Education strengthening links (Learning and Innovation between teacher Loan) education and

schooV classroom realities

Design, implement new systems for recruiting and managing teachers on a decentralized basis, in support of an increasingly important contractual, non-civil service teacher corps

Make teacher education institutions more productive and less costly

Develop an innovative, school-based teacher education system with sufficient capacity to respond to Guinea's decision to provide primary education to all children (overall objective)

1. Project Performance Appraisal Report. Guinea: First Education Project. November 26, 1986, Report no. 6498. T h e project financed construction o f the Ecole Normale Superieure d'Enseignement Technique (ENSET). Teachers received training in general and auto mechanics, welding, electricity, masonry, carpentry, plumbing, metalwork, and operation o f public works equipment. A Baccalaureate and good knowledge o f French was required for entrance, which few people possessed. When audited, the institution had an insufficient budget and only 230 students instead o f the 400 expected annually. Though in good condition in 2003, it had only 285 students and was not serving the poor residents o f the area.

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2. Implementation o f the Assessed Projects

5. (Annex A, Tables 1-5).

Project implementation shared the following common activities and problems

6. Civil works. The projects built and refurbished educational institutions o f various sizes. Much o f the construction was carried through parallel donor financing. Education I1 built four vocational and two teacher training centers that cost more than expected. The Education Sector Adjustment Program (known as PASE I)’ and the Equity and Schools Improvement project (known as PASE 11) built or rehabilitated a total o f 4,796 primary classrooms, mainly in rural areas (Annex A, Tables 1-3). Local NGOs proved capable o f building better quality schools and at lower cost than the g~vernment.~ Nevertheless, communities proved less capable o f financing and maintaining schools than had been expected at appraisal. Overall civil works were completed as expected and were o f acceptable quality.

7. Textbooks. The projects financed no textbooks to vocational and teacher training students, only to primary education students. The three projects that contained textbook components, however, had major problems. Education I1 produced about 450,000 textbooks4 that were to be sold for cost recovery, but the poor could not afford the books, so only 12,000 were sold, mainly in Conakry. (The OED mission could not get a clear answer regarding the fate o f the rest.) Under PASE I, 400,000 textbooks and guides were distributed in schools, and they were in use in 1997.5 PASE I1 financed 2.4 million textbooks that were to be rented to students at l ow prices (US$0.20 for primary and US$0.50 for secondary students). The scheme worked well in some areas o f the interior, but the rental fees were lost to mismanagement o f bank accounts.6 At the same time, many books were stolen from schools or sold illegally and lack o f funds prevented renewal o f the stock. Others were worn out. (See section on PASE I1 implementation below.) As a result, schools had almost no textbooks in 2003.

8. Teacher training. Education I1 as well as bilateral donors gave large numbers o f foreign fellowships (about 85 staff years could be documented) for ministry staff and teachers o f various educational institutions. Education I1 also financed the operation o f pre-service teacher training colleges but did not finance the instructional aspects o f training teachers. The issue was revisited about 20 years later, when the Pre-service Teacher Training Project invested in some o f the existing facilities to make possible the

2. Programme d’Ajustement Sectoriel de 1’Education.

3. Under the adjustment credit, government tried to build i t s own schools with i t s own construction unit but built fewer than 300 classrooms in three years.

4. T h e project was to provide textbooks in seven national languages, but only 10 o f the planned 22 titles were developed and those only in French. This was the result o f a government policy change in 1984, to which the Bank did not contribute.

5 . Statistical yearbooks show distribution o f textbooks by area. (Ministkre de 1’ Enseignement Pre-Universitaire et de 1’Education Civique. Annuaire statistique Enseignement Primaire. Conakry June 2002.)

6 . The donors expected the rental fees to be kept locally to help maintain the book stock and to accustom local officials to managing money. The central government, however, required that the fees be deposited in regional accounts, which were subsequently used for political purposes.

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intensive training o f large numbers o f teachers. (See details o f this project below.) The concept o f in-sewice training was introduced as a pol icy i tem under PASE I. Rather than carry out large-scale workshops, which have often limited outcomes, PASE I1 developed a tailored approach through a program o f about 1,200 grants to schools. The grants mainly financed training in French and mathematics, but also some infrastructure repair.

9. development o f educational statistics units at the primary and higher education level through staff training and hardware (Annex A, Tables 1-4). Attempts under Education I1 were unsatisfactory, but later projects resulted in the production o f timely statistical reports. The higher education project also supported 25 studies on governance and finance issues (at the ministry and at the institutional level), some with grant-financed research (Annex A, Table 4).

Planning and institutional development. Nearly every project has supported the

10. Educational telecommunications. In a country with a limited telephone network the PASE I1 project financed VHF (very high frequency) radio to link 10 regional and 38 prefect-level offices. The higher education project financed a VHF satellite antenna for telecommunications and Internet access linking the Ministry o f Higher Education and the university o f Conakry with the more remote towns o f Bok& Farana, and Kankan.

1 1. Financial management. Most projects have faced large governance and financial management issues. Prominent were procurement irregularities and missing records. The magnitude o f the problems became more evident in the later projects, after the Bank emphasized procurement planning and audits. PASE 11, in particular, had multiple and major issues. For example, a 1998 audit’ found lax accounting procedures, ineligible expenditures, and no archiving o f documents on providers. Misuse o f the emergency school repairs fund resulted in suspended disbursements for that subcomponent. In addition, multiple aspects o f textbook provision were mismanaged. In the Ministry o f Higher Education, the expenditures o f the financial controller’s unit that was to be strengthened through the higher education project could not properly be accounted.

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12. visit findings.

Below is the implementation experience for individual projects as well as mission

Education I1 (FYS3)

13. The project dealt with multiple subsectors, and i t s design consisted o f weakly linked components. The complexity contributed to long delays. Conflicts between the Bank and the government arose regarding the cost o f various activities. Total project costs were 23 percent higher than expected (though an extra center was included). Support to the pedagogical institute and financing o f a printing press for textbooks had limited outcomes (Annex A, Table 1).

7. Ministere de 1’Enseignement Pre-Universitaire. Direction Administrative des Affaires Financieres, “DAAF.” Rapport sur le ContrBle Interne. Exercices Clos l e 30 Novembre 1998. Emst and Young.

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14. The project continued the vocational-technical education investments o f the f i rst project, which had focused on vocational teacher training.8 The vocational centers built were staffed by instructors who had been trained under the f i rst project. Their operational policies included entry requirement o f 10 years o f education, instruction in French, and no cost recovery from students.

15. In 2003, the centers continued to operate the same way. Having received little investment in the past 20 years, they have l i t t le equipment left . Few students with the requisite education are interested in the training, and without adequate tuition levels, i t has not been possible to institute popular courses such as computer technology. For example, the Lab6 center has only about 250 students (35 girls) and operates o n a shortened schedule, closing at 2 p.m., but few pieces o f equipment remain f rom the second. The linkage with businesses i s limited, mainly consisting o f an effort to train the informal apprentices o f local artisans in the afternoons. However, staff have developed and are disseminating to students techniques o f making bricks and buildings o f stabilized unbaked clay to alleviate the environmental consequences o f baking bricks. The vocational training center o f Boke (financed through Italian aid) presents a similar picture o f large buildings used for ha l f a day. The center caters to the bauxite industry and currently i s training 410 students (36 girls) in mine operations, using equipment obtained through Canadian aid.

16. education have few options open. Admission requirements also kept teacher training colleges underoccupied until the Preservice Teacher Training Project used these institutions more efficiently (see below).

Whi le these campuses are underused, potential students with lower levels o f

Education Sector Adjustment Credit (FY90)

17. The need for th is project arose because o f rapidly deteriorating economic conditions during the 1980s and dropping primary school enrollments that resulted from the increasing poverty." The Programme d' Ajustement Sectoriel de 1'Education (PASE I) consisted o f three tranches totaling US$20 mi l l ion that were to be released as specific conditions were met: adoption o f a national pol icy to increase primary-school enrollments (particularly for girls), redeployment o f teachers from offices to schools, increased spending in primary schools, and establishment o f financing norms for non-salary expenditure (Annex A, Table 2). IDA contributed 45 percent o f the total government program. Some 20 donors financed

8. Project Performance Appraisal Report. Guinea: First Education Project. November 26, 1986, Report no. 6498. The project financed construction o f the Ecole Normale Superieure d'Enseignement Technique (ENSET). Teachers received training in general and auto mechanics, welding, electricity, masonry, carpentry, plumbing, metalwork, and operation o f public works equipment. A Baccalaureate and good knowledge o f French was required for entrance, which few people possessed. When audited, the institution had an insufficient budget and only 230 students instead of the 400 expected annually. Though in good condition in 2003, it had only 285 students and was not serving the poor residents of the area.

9. T h e Guinean school system has six years of primary, seven years o f secondary, and five years o f tertiary education. Primary schools function 30 hours a week (5 hours daily for 6 days a week), except where there are double-shift classes, which reduces weekly contact hours to 25.

10. In 1989, only 28 percent o f primary school-aged children were enrolled in school, only 10 percent of whom completed primary school. A Structural Adjustment Program was put in place that intended to reduce the overall budget deficit from 8 percent of GDP in 1988 to 5.1 percent in 1989 and to less than 4.5 percent in 1990-95.

6

various activities in parallel, including USAID (US$29.1 million) and France (US$9 million), which provided financing through the project.

18. leadership in the Ministry o f Education. A team o f competent managers was assembled that took charge o f implementation. O f 16 policy-related activities 15 were carried out and 13 had a sustained effect (Annex A, Table 2). The gross enrollment ratio” rose from 32 in 1990 to 52 percent in 1997, while girls’ enrollments almost doubled from 19 to 35 percent over the same period. The share o f primary education in the education budget increased from 35 percent in 1993 to 68 percent in 2002.12 I t was a period o f important sectoral achievements and the foundations were laid for future progress.

The project coincided with a period o f strong political commitment and dedicated

Equity and School Improvement Project (FY95)

19. project, PASE 11. In addition to increasing access the project focused more on quality o f education. As with PASE I, the project involved coordinating several donors-the African Development Bank (US$1 1 million), Canada (US$1.6 million), European Union (US$15.6 million), France (US$9.5 million), Japan (US$15 million), and U S A I D (US$20 million)-in separate projects. IDA’S US$43 million constituted 37 percent o f donor financing for the project.

Implementation o f the sector adjustment policies continued through an investment

20. components that were innovative or hard to implement in poorer countries: School-based preventive health measures were taken (deworming, micronutrients, folic acid supplementation), but disagreements with donors on drug prices resulted in sporadic administrations and ultimately were not effective in reducing the children’s parasitic load (Annex A, Table 3). The school-based teacher training grants reached about ha l f the teacher p~pulat ion, ’~ and al l but three o f the teachers interviewed by the mission had participated in one. The teachers spoke very positively about the experience and the books they had bought. A sample-based assessment of achievement in three grades was carried out in 1998; this activity i s hard to achieve in low-income countries.

The project showcased the government’s strengths and weaknesses. I t included

2 1. However, a cabinet change in the government in 1998 resulted in less attention to instructional issues. The student as~essment’~ showed very limited achievement for most students (Table 3), but no measures were taken to improve it. To the contrary, the multiple textbook management and financial issues’’ deprived students o f textbooks and

1 1. Primary-level gross enrollment ratio i s the ratio o f total enrollment, regardless o f age, to the population o f the age group that officially corresponds to the primary level o f education. (Data Source: UNESCO).

12. Ministere de I’Enseignement Primaire et de 1’Education Civique. DonnCes Statistiques Enseignement Primaire - AnnCe Scolaire 2001-2002. Conakry: June 2002.

13. Programme d’Education de Base pour Tous. Evaluation et Analyse des Impacts Environmentaux et Sociaux du Programme Education de Base pour Tous en Guinee. April 2001.

14. Barrier Emilie, Sekou Fernandez, Jeannot Saa Tinguiano, Gononan Traore. 1998. Evaluation du Systeme Educatif GuinCen. Centre Intemational d’ Etudes Pedagogiques - Sevre et Cellule Nationale de Coordination de I’Evaluation du Systeme Educatif - Conakry.

15. After many delays by the pedagogical institute, only four textbook titles were published under PASE 11. Printing was to support local production through IDA funds, but the government made a separate agreement to use ADB

7

contributed to l ow achievement. l6 They also resulted in much donor disappointment and wariness about working again with units such as the pedagogical institute.

22. district offices. in Boffa, Boke, Conakry, Dubreka, Kindia, LabC, and Mamou.” Observations included:

The mission visited nine rural and urban primary and secondary schools as well as

0 There were few textbooks except in the hands o f the teachers (even in a private school visited in Labe). Teachers spend much o f time copying on the blackboard the material that i s normally in textbooks, and students recopied the material. Thus, most o f the class time was spent copying, and students got l i t t le practice reading or elaborating the material presented.

0 Even in grades 5 and 6, students read haltingly and without comprehension; some were unable to read back what they had copied. Few were fluent readers.

0 Due to limited information and French knowledge, the discourse in class was o f l o w level; for example, students were learning the names o f clothes in grade 4. The students lacked the vocabulary to carry out higher-order questioning, class discussions, or engage in analysis and synthesis. Even to become able to read a newspaper, many must go to secondary school.

Higher Education Technical Assistance Project (FY96)

23. According to the Staff Appraisal Report, higher education in Guinea in 1993 suffered from poor physical infrastructure, erratic pol icy history, and a severe lack o f relevance, quality, efficiency, and equity. However, the government was resistant to meeting efficiency goals as a condition o f lending, so a small project o f US$6.6 mi l l ion was designed to improve only management capacity and help the government make strategic decisions regarding sector performance.

24. for change. Twenty-five studies were financed by the project (Annex A, Table 4). A small research grant program was established, and al l faculties explored ways to update their offerings (including graduate courses and doctorates), though there were limited funds for doing so. Training was offered in computers in conjunction with the Internet that was made available through the project. Activities resulted in a few policy changes.

Project activities focused on studying sectoral issues and locating opportunities

parallel funds and finance a different series o f books, that were to be printed in France. IDA subsequently canceled i t s own component. Many o f the 2.4 mi l l ion ADB-financed textbooks that were to be imported were lost from the storage locations.

16. Those who have textbooks increase their scores by 2.4 points in French and 2.2 in math, while those doing homework score 7.6 points higher in French and 9.8 points higher in math over those almost never doing homework (Barrier at al. 1998, p. 47, grade 6 summary)

17. The schools were: Federico Mayor in Conakry, Kurula 2 in Labe, Yacine Dial lo in Labt, College de Daralabe, Mamadou Koumbaga in Kindia, Franco-Arab school in Nianaya, Ecole de Goneye in Boke, catholic school o f Boffa, and Ccole de l a Garre in Conakry. The need to cover long distances made it hard to visit more schools. The rural schools were chosen for their accessibility and were near the country’s main road network, so their conditions are probably better than average. (Schools in the more remote forest Guinea may have very different conditions.)

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All students continue to receive stipends but now do so only if they pass examinations. The expensive cafeteria was closed, and scholarship amounts were increased to allow students to get their own food. However, efforts to increase teaching hours and reduce the large numbers o f poorly paid professors failed. Though the project fulf i l led i t s objectives, i t did not improve instructional delivery in higher education, an issue o f many African universities. l8

25. University o f Conakry expressed much satisfaction with the Internet and communication link they now have with other campuses. Other project outcomes were considered moderately satisfactory. The staff expressed disappointment because no c iv i l works had been financed; the University o f Conakry was built for 1,500 students and houses 10,000. A need was expressed for a library where students would find books to study because professors must s t i l l dictate texts; however, there was no interest in ensuring that students have access to textbooks for home use.

In a focus group discussion with the OED mission, professors and deans at the

26. Mines in Bokk, curricular studies were completed but not implemented. The approximately 500 students study outdated curricula without textbooks and get no computer training. I t was not possible to complete a small building to house computers, so they remain in storage. Teacher qualifications are low, and the large campus i s underutilized. The project has not helped implement policies regarding this important institution.

Project effects outside Conakry are unclear. In the Higher Education Institute o f

Pre-Service Teacher Educat ion Project (FY99)

27. This project was financed to deal with the need to train and hire 20,000-25,000 more teachers in the next 12 years at the rate o f about 2,000 per year at salaries that the government can afford. Existing programs produced only about 500 teachers altogether, and training lasted three years for the trainees who had finished grade 10.19 Though three- year training would strengthen students’ weak basic skills, urgent needs for teachers demanded faster course completion. The project targeted students with 11 years o f education who had failed the second part o f the Baccalaureate examination and who agreed to work as contract teachers at salaries o f about US$58 per month (1 10,000 Guinean francs) and no benefits. The new approach to teacher education consisted o f a nine-month practice-based course and a three-month summer intensive course, both followed by regular supervision. After two years o f supervised work, teachers could be certified. Five o f the eight teacher training institutes in the country participated. To increase ownership and stability o f teachers, candidates were selected by local authorities.

28. Innovation Loan (LIL) that would train 6,000 teachers (25 percent female). With a

Discussions with the Bank on the urgency of training led to a three-year Leaming

18. Salmi et al. 2002.

19. Many African countries (e.g. Burkina Faso) have one- or two-year training. Community teachers with lower credentials (brevet o f 10 years) are hired and trained by NGOs l ike Plan Gu ide , Ecoliers du Monde. They have the community support, so many are knowledgeable and committed.

9

project preparation fund, the government team started planning in February 1998 and by June 1998 they admitted the f i rst cohort o f trainees. Ultimately out o f 8,166 trainees, 7,579 (37 percent women), passed final examinations. The teachers trained in that three- month summer course helped increase enrollment by 52,000 students in 1998/99.20 An evaluation2’ indicated that teacher quality i s about the same as that o f other teachers.22 Parents were also satisfied (p. 14).

29. Labe, and Kindia (Ecoles Normales d’Instruction, ENI) ascertained that i t has been possible to train large numbers o f students in effective teaching techniques, but has been difficult to supervise them during student-teaching. They may be placed in locations that are not accessible. Also, older teachers may convince them to revert to less effective techniques. I t i s uncertain how many o f the poorly paid contract teachers wil l continue to work in the long run. Because there are no textbooks, most o f the class time in the ENIs i s spent dictating information. Student teachers also lack access to the textbooks they wil l use to teach their students. The teacher trainers interviewed expressed concerns about the teachers’ French knowledge. Partly due to such reservations, the government plans to return to three-year training.

Focus group discussions with teachers in teacher training institutes o f Conakry,

3. Results

Outcomes

30. The Bank’s human resource development strategy for Guinea, and the objectives o f the projects i t supported, have been relevant to the economic needs o f Guinea. According to some government officials, the investments permitted the country to make education available to the masses, so that demand outstrips supply in 2003. After 20 years o f investments, and US$94.3 mi l l ion in IDA credits, what effects have the projects brought about?

3 1. I t appears that the country has got good value for the US$94.3 mi l l ion borrowed in IDA credits. As a result o f political wil l and donor emphasis during the PASE I project, the education budget has hovered around 25.5 percent o f the national budget since 199 1. Within this allocation, primary education received 67.8 percent and higher education 2 1 percent in 2001. The financing changes initiated through the education sector adjustment project have been sustainable, and resources have been shifted consistently to primary education. The government has contained some higher education excesses common in other area countries, such expensive cafeterias. Specifically, results are:

20. A Chance to Leam: Knowledge and Finance for Education in Sub-Saharan Africa. African Region Human Development Family. February 200 1, report no. 22005.

21, Minist6re de I’Enseignement Technique et de la Formation Professionnelle. Formation Initiale des Maitres en Guinee. (FIM-G). Rapport Final de 1’Etude Evaluative sur l e processus de la formation et l’apprentissage des tleves maitres dans les ENI. Consortium International de Dtveloppement en Education. Montreal, Quebec, January 2002.

22. Projet FIMG. Projet de Formation Initiale des Maitres en Guinie “FIM-G.” Rapport d’Ach6vement du Project “FIMG.” November 2002, p. 12.

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32. goal to achieve 53 percent gross enrollment rate for 2000 and has a good chance o f achieving universal primary education, the second Mil lennium Development Goal.23 The rate increased from 32 percent in 1991 to 72 percent in 2002, and i s approaching the average o f sub-Saharan Africa, which i s about 83.6 percent. Girls’ enrollment rose from 19.7 to 63 percent in the same period (Figure 1),24 and their share o f primary enrollments reached 44 percent in 2002, up from 32 percent in the f i rst hal f o f the 1990s. As a result o f consciousness raising about equity, the gender gap is closing.25 More students stay in school. Those reaching grade 5 increased from 58 to 89.9 percent between 1990 and 1999.26 (Enrollment pressure has resulted in classes o f 50-1 10 students in urban areas.) Access has also increased to teacher training institutes, whose output increased by nearly 10 times in three years.

Figure 1. Evolution o f Gross Primary-School Enrollments since 1979

Greatly increased access. Guinea has met and surpassed i t s Education for All

90 80 70 60

U

E = 50 2 5 40 2 30 8 20

10 0

+ Boys Total

Source: Donnees Statistiques Enseignement Primaire - AnnCe Scolaire 2001 -2002.

33. Very limited basic skills. The lending program has been less successful in improving quality. Primary-school grade repetition hovers around 20 percent, and only about 50 percent o f the o f sixth grade students pass the entrance examination to secondary scho01.~’ I t i s unknown whether quality o f education i s stable or deteriorating in this environment o f rapid expansion, since measurements have not taken place earlier.

23. “Guinea: A Steady Growth Path to Achieve Education for All.” Human Development Network: Education Notes, April 2002.

24. Ministere de I’Enseignement Primaire et de ]’Education Civique. Donntes Statistiques Enseignement Primaire - AnnCe Scolaire 2001-2002. Conakry: June 2002. Subsaharan Africa average : EDSTATS, World Bank 2000.

25. Education for A l l Project Appraisal Document, 2001.

26. World Bank: World Development Indicators database, April 2002.

27. Ministtre de 1’Enseignement Primaire et de 1’Education Civique. Donnees Statistiques Enseignement Primaire - Annee Scolaire 2001-2002. Conakry: June 2002.

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However, the 1998 evaluation28 (Table 3) indicates that l i t t l e i s leamed in each grade. Only a small percentage o f students score at a mastery criterion o f 75% set by the test developers, and the percentage decreases by grade. The data suggest that the vast majority of students are functionally illiterate at the end of grade 6. Mission observations confirmed that many students were unable to read or explain what they read.

34. years to get basic sk i l ls and a working knowledge o f French. Since they have not leamed to read and write in their own languages (unless written in the Arabic script leamed after- hours), students may graduate unable to express simple needs in writing. The l imited student skills have made it difficult to train teachers within short periods o f time.

Because o f l ow instructional efficiency, students must go to school for many

Table 3. Average Sample-Based Test Scores

Subject Grade 2 Grade 4 Grade 6 Grade 2 Grade 4 Grade 6

% Items Correct % students scoring 75%+

French 53% 39% 34% 15% 10% c5% Math 45% 39% 34% 11% 5% <5% Written expression - 25% Source: Barrier et al. 1998

35. a long-term impact on the sector, since the ministries and educational institutions continue to be staffed by persons trained at that time. Authorities considered the school- based grants program under PASE I1 highly satisfactory because teachers organized their own knowledge needs and might become more effective teachers. Repetition in schools whose teachers had participated was lower than in non-participating schools (1 8 percent for the first year and 24 percent for the second, compared to 27 and 32 percent, respectively), but i t i s uncertain whether students performed better or teachers were more sensitized. 29

Training ofeducators. The many fellowships given during Education I1 have had

36. required to enter. The l o w quality o f general education affects students’ ability to benefit from classes taught exclusively in French and without textbooks. Institutions remain functional 20-30 years after they were built, lack o f cost recovery makes i t difficult to improve their equipment and courses. Though some are in low-income neighborhoods, they serve very few o f the residents.

Vocational education remains l imited because o f the high educational level

37. Sector policies and dialogue. Bank strategy for Guinea has changed repeatedly over a 25-year period.30 The pol icy dialogue carried out under Education I1 had l imited scope. Faced with increasing numbers o f Baccalaureate graduates entering the university automatically, the project sought to reduce secondary school graduation rates rather than

28. Barrier et al. 1998. T h e documents are voluminous, and the significance o f the information was not well communicated.

29. Barrier et al. 1998 “Evaluation en deuxitme ann&,” p. 25.

30. There has been no formal sector work.

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help the government institute entrance examination^.^' The outcome was to increase dropout in secondary schools, and Baccalaureate candidates declined by 45 percent between 1978 and 1979. Insistence on cost-recovery o f textbooks (under Education 11) meant that few students could afford to study from them. During PASE I, however, a series o f far-reaching reforms were implemented to facilitate schooling for the poor, which have largely been sustained (Annex A, Table 2). Intense pol icy dialogue took place during the higher education and teacher training projects. However, the Bank had little advice to offer with regard to language o f instruction issue in the 1980s, and later efforts o f task managers to mitigate the problems associated with use o f French bore limited results. Furthermore, long-term outcomes on the quality o f education are uncertain. None o f the projects has financed focused and specific actions to improve instructional delivery and student a~h ievemen t .~~ The 2003 County Assistance Strategy for Guinea continues to emphasize quality, equity, and accessibility o f services. Clear plans to increase achievement, however, are s t i l l not drawn.

4. Ratings Project Outcomes

38. i t s quality and planning objectives were not met during its implementation, but the infrastructure and training it provided has helped their achievement in the long run.33 The outcome o f the Education Sector Adjustment Project i s rated highly satisfactory because nearly al l pol icy conditions were met, and their effect was lasting. The Equity and School Improvement Project outcome i s rated satisfactory. Though it was energetically implemented, textbook provision failed to have a lasting effect, and the quality o f education may not have improved. The outcome o f the Higher Education Project i s also satisfactory because i t s objectives were met, although they were narrow for the needs o f the sector. The Pre-Service Teacher Education Project i s rated satisfactory. I t s objectives were largely achieved efficiently and targets were exceeded, but the knowledge level o f teachers may not meet school requirements, and the government plans to revert to longer training.

The outcome o f the Second Education Project i s rated moderately satisfactory;

Institutional Development Impact

39. For the Pre-Service Teacher Education project, institutional development is rated substantial. The Professional Training Ministry as well as the participating teacher training centers were able to respond to the demand and increase teacher training output almost tenfold. For the other projects, institutional development is rated modest; the ability o f the institutions to provide education to a l l was clouded by the governance issues

3 1. Automatic entry to universities is a long-standing issue o f countries that follow the French system in particular, and the Bank has held policy discussions with many countries (Salmi, J. et al. 2002. Constructing knowledge societies : new challenges for tertiary education. Washington: World Bank. Directions in Development Series.).

32. Extensive classroom-level work was undertaken b y bilateral donors (Canada, Germany, USAID) but it was applied in limited circumstances. T h e Bank did not create sufficient linkages to help ensure that the most promising developments were taken to scale.

3 3 . The Project Completion Report in 1991 rated outcome as unsatisfactory and institutional development as negligible.

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related to c iv i l works and textbooks. Institutional development was considered negligible for the second education project upon completion, but the fellowships and training provided had a lasting effect on the ability o f institutions to respond to students’ needs.

Sustainability

40. Sustainability for al l projects i s rated likely. The training and infrastructure investments o f the second education project have been sustained over time, as have many o f the sector adjustment policies. Government ownership has been sustained over the years, but the system’s financial sustainability i s questionable given university expenditure that i s s t i l l disproportionate. To deliver the quantity and quality o f the education needed, the system will require more government funding, which the donor community can only supplement. In particular, textbooks are not sustainable without donor financing. Though the training format used in the teacher training project and i t s benefits may be sustainable, the sustainability o f the training pol icy i s in doubt, because the government intends to return to three-year training.

Bank Performance

41. unsatisfactory in the second education project, which demonstrated poor human resource development by sanctioning a government pol icy that forced dropouts. Bank performance i s rated satisfactory in al l subsequent projects. Government staff were highly appreciative o f its vision, support, donor coordination, and push for quality. Once the Bank committed to a lending program, i t fulfilled i t s commitments. Nevertheless, some officials interviewed fel t that the Bank did not respond to needs for more construction or urban schools, secondary school laboratories, and badly needed university buildings. Though Bank projects contain much training, other donors offer that as well.

Bank performance has greatly improved in the past 20 years. Performance was

42. concern because o f staff turnover since 2000. Different task managers came with different views, and Guinean staff fe l t that they had to spend time briefing them about previous agreements and policies. Some were generalists with l i t t le educational knowledge and limited understanding o f the rationale for various decisions. Often they were slow to give approvals, and the government fe l t that the Bank was paying no attention to i t s needs. For example, Bank decisions were blamed for the erratic procurement and distribution o f dewormining pi l ls to children.

The Bank supervised projects closely in the 1990s, but several officials expressed

43. In addition, repeated concerns were expressed about complex and time- consuming procurement procedures. In particular, government staff who were interviewed fel t that procurement o f items in large packages prevented them from doing their work. For example, if the statistics office ran out o f printer toner, i t had to wait for six months. Computers had to be procured in large lots 2-3 years in advance, and by the time they arrived, the models were out o f date. Procurement planning during appraisals appears to have been insufficient. Government procurement practices may have compounded problems.

14

Borrower Performance

44. are many competent staff and middle managers who are stable, have a long institutional memory, execute agreed activities and readily discuss substantive issues. In the mid- 1990s, in particular, the Ministry o f Education paid much attention to educational issues. O n the other hand, the government as a whole has given a limited support to education: chronic underfinancing, appointing some very weak senior-level managers and accountants, and demonstrating poor governance. Some persons interviewed argued that the extensive donor support o f non-salary expenditure has made the government complacent and not as interested in reform. Corruption worries donors, who have become cautious about investing in the parts o f the education system that involve large-scale procurement, such as textbooks and c iv i l works.

In some respects, Guinean institutions offer striking contrasts. On one hand, there

45. (pre-university, higher, and vocational-technical), each with i t s own staff. The serious governance problems that have marred project implementation have caused much concern to the Bank over the years, and some task managers have been reluctant to approve contracts that raise suspicions o f mismanagement and demand a great deal o f paperwork for them. This reportedly was one reason why the Bank has delayed some approvals. Poor governance may also be linked to some difficulties staff report with bulk procurement.

Moreover, the system has been wasteful; the Ministry o f Education split into three

46. Borrower performance i s rated unsatisfactory for the Second Education project, highly satisfactory for the Sector Adjustment Project and for the Pre-Service Teacher Education Project, and satisfactory for the Higher Education Project and for the Equity and Schools Improvement Project.

5. Issues for Future Consideration

A Need for Improved Textbook Strategy

47. The government expects that 80 percent o f the students wil l read fluently in French at the end o f grade 2 by 2007,34 but this objective i s unattainable in the near future. To learn the expected information, students need to take books home to read, not just to read teachers’ notes or some books during class. To make effective use o f educational investments, books might be substantially subsidized for the next 5- 10 years. According to the Education For All Project Appraisal Document (PAD) estimates, free distribution o f textbooks will amount to 2-3 percent o f the sector budget annually. Through fast-tracking o f the Education for All effort, the country has the opportunity to get textbooks financed as a recurrent expenditure.

34. The government has tried to implement its vision in a three-step plan, starting with the education sector adjustment credit and culminating with the Education for All program. The program should bring about universal primary education in 2006; at that year, 100 percent o f children eligible to start school should enroll in grade 1; by 2007, 80 percent o f children should acquire minimum competencies and read at grade level, and universal access to education would be consolidated in 2010.

15

48. Because o f high prices and scarcity, private book distributors contracted to deliver project-financed books in various countries (e.g., Senegal) can earn more by sell ing the books at a nearby market than by delivering them to the schools. Since in Guinea there were no books available for private sale, those delivered in schools were a valuable commodity. 35 Making textbooks available in the market at affordable prices and in quantities that make their “street value” too l ow to be worth the effort o f stealing them i s an obvious solution. This could be achieved in various ways:36

Textbook sustainability in schools a general problem in Francophone Africa.

0 Thus far, projects have printed textbooks in France because the local market did not have sufficient capacity. Some local capacity does exist, however, notably the Patricio Lumumba printing press o f the Ministry o f Information as well as a small press in Mamou.

0 If some or al l books continue to be imported, the publishers should have agents in Guinea to make the textbooks available for sale at the local market.

0 Primary- and secondary-school textbooks should also be produced by local private publishers, even i f only in small quantities. Guinean publishers must be encouraged to print them and receive the films that the government owns. Many countries involved in textbook production waive duties on paper and ink.

0 Textbooks delivered to students by previous Bank-supported projects may have been worn out quickly. Newer editions should be designed to withstand humidity and years o f handling. To minimize wear and tear, students should be directed on how to cover them.

0 National-language textbooks (if developed for grades 1-2 as planned) wil l probably have a lower ‘street’ value outside the country and may prove more durable.

0 Central procurement has focused on choosing one series o f books and buying in lots large enough to become targets o f potential corruption. Instead, procurement methods could be put in place to ensure books are available every year, using the private sector for distribution. Thus, central distribution o f books might best be abandoned. Positive experiences reported by inspectors o n rental fees suggest that schools can manage books. They could be allocated budgets for book purchase (even if they do not handle the actual cash). The parent-teacher associations could help schools with logistics, including safeguarding books during vacations.

35. For a detailed account o f textbooks and other issues see Moulton, Jeanne et al. Paradigm Lost? 2001. The Implementation o f Basic Education Reforms in Sub-Saharan Africa. USAID. Office o f Sustainable Development Bureau for Africa. SDP Publication Series, Technical Paper No. 109. 36. World Bank. 2002. ‘World Bank Support for the Provision o f Textbooks in Subsaharan Africa”. Human Development Network.

16

0 There i s a need consultation with parents, schools, publishers, and small market vendors o f textbooks. The financial issues and constraints need to be understood more clearly.

49. deliver them directly to schools, demand multiple signatures attesting delivery, and ask parents’ associations, teachers, and directors to assume greater responsibility for guarding and maintaining the textbooks. These measures are certainly needed. However, in the past, textbook procurement has been subject to long delays and concerns regarding mismanagement. Calls for bids in the current project are already facing delays. Student numbers increase fast, and the next grade 1 intake wil l have about 150,000 students. The next planned procurement o f texts will already provide too few books. Thus, there will probably be no sustainable textbooks in the hands o f the students for the next 3-4 years. This issue wil l continue affect student achievement.

The government plans in the future to control the distribution o f textbooks better,

50. Textbooks by themselves are insufficient to alleviate the information constriction o f the system. Teachers must be trained to abandon the copying and dictation mode. This poses problems because teachers have been taught without textbooks and may not necessarily find them indispensable. Furthermore, if they do not dictate or copy, they may have to think o f more analytical questions to pose, for which they may not be ready. Copying activities persist even after training, as the experience o f Brazi l

5 1. wel l as for the university. Because the quantities are smaller and the costs o f the textbooks higher, the books could be rented to students. Because higher education students in Francophone countries traditionally study without textbooks, this issue i s not seen as urgent by university or teacher training authorities. But the students o f these levels are subject to the same information restrictions as lower-level students. University classrooms function in effect, as copying centers.

Textbooks must be provided for the students o f teacher education institutions as

52. will search for book-related solutions in the entire sector. The coordinator should be able to order examination copies for the entire system and send the samples to the various institutions rather than merely send book descriptions, as i s currently done.

The ongoing Education for All program may need an educational coordinator who

Language o f Instruction

53. write a letter to relatives after schooling o f several years. They also lack the vocabulary to engage in the very desirable instructional methods that involve higher levels in the cognitive domain (analysis, synthesis, evaluation). Ironically, students may learn to read and calculate within one or two years through Afr ican languages, which are spelled phonetically (as they become fluent readers in voweled Arabic). Experiences in neighboring countries (specifically Burkina Faso and Mali) suggest that students taught

Because o f the exclusive use o f French in schools, most students are unable to

37. Brazil - Innovations in Basic Education Project, the Second and Third Northeast Basic Education Projects, and the School Improvement Project OED Project Performance Assessment Report no. 24433, June 2002.

17

f i rst in local languages are likely to learn basic sk i l ls as well as French and to stay in school.

54. Guinea has had unsatisfactory experiences with local languages in the past because the languages were introduced in the curriculum without planning or sensitivity to various ethnic groups and languages to be chosen. The population seems largely opposed to local-language instruction, partly because o f the political problems linked to it in the 1980s. In principle, the government plans to reintroduce informal instruction in local languages. However, the big benefits are l ikely to come from learning to read effortlessly in local languages. For this to happen, textbooks in the main languages would be needed. The need for such textbooks exacerbates the current textbook problems, given the l imited capacity to print them locally. Nevertheless, i t remains a problem to resolve if the average students are to acquire basic sk i l ls in school.

Cost recovery and requirements in Vocational-Technical Education

55. For better use o f the IDA investments, the Ministry o f Education could encourage institutions to admit a l l students who are willing to study the trades they offer. As with primary schools, this strategy may necessitate teaching in local languages.

Policy changes are needed in the entrance requirements o f vocational institutions.

56. These institutions, which are relatively large and have much space, could potentially be used for three shifts if they have relevant courses to offer to different types o f clients. However, cost recovery is needed to help institutions become better used. To introduce courses o f greater demand, investments are needed on teachers and equipment. These in turn could generate more income. Catering to those who can pay may allow institutions to better tailor training to the less educated as well.

Lessons

57. education sector:

Experience with the projects confirms a number o f OED lessons from the

0 Policy dialogue and project activities must stay focused o n improving instructional effectiveness and providing students with basic skil ls. Activities aimed at strengthening management and procuring educational commodities may be necessary but they are not sufficient for the improvement o f learning and quality in educational systems. Providing mass education under clearly inadequate instructional conditions may graduate functional illiterates and benefit only a minority o f students.

0 Textbooks are the crucial providers o f information in schools. If they are unavailable or if students cannot study fi-om them sufficiently, the rest o f the educational investments lose their effectiveness. Procurement methods and plans must aim at making large numbers o f textbooks available at an affordable cost and free to the poor. Textbook management must take into account the strengths o f the private sector and the community associations.

18

Sustained investment in human resources can improve implementation capacity o f specific institutions. For example, foreign fellowships for persons who return and devote their career to the agencies they were expected to serve may result in a considerable o f trained and competent staff.

0 In earlier decades, the Bank supported vocational training schools in many countries, which often function with few students, high unit costs, and outdated equipment and curricula. Bank investments wil l be best used if pol icy dialogue is focused toward modernizing courses, generating income, and catering to the populations likely to be interested in vocational training.

19

Annex A. Project Activities

Table 1. Education I1 (1983-90)

outputs Outcomes Targets to be Activities Components1 subcomponents achieved

Vocational Training

Parallel ADB (1 1.72m) for Labe and Nzerekore) and Saudi Fund (US4 m) for Faranah and Kankan.

Educational and Human Resources Planning

Primary Education Quality

Construct, equip, operationalize vocational training institutes in Kankan, Labe, Ndzerekork

Support the Technical Instructor Training Institute

Central Supply Unit

Equipment, materials, TA, fellowships

General Education Planning Directorate, Ministry o f Education

Equipment, materials, TA, fellowships, operating costs

National Pedagogical Institute

Construction, Equipment, materials, TA, fellowships, operating costs

Educational Printing Office

Two primary teacher training colleges in Labe and Kankan Construction, Equipment, materials, TA, fellowships, operating costs

Fellowships to all areas

700 students, 280 graduates annually in 7 trades

Equipment, materials, TA, fellowships to upgrade teachers Ability to carry out procurement, supply equipment, spare parts Recommend systemic restructuring

Monitor student flows

Ability to develop textbooks, upgrade inspectors

About 46 fellowships to various education professionals

Construction, Equipment, materials, TA, fellowships, operating costs Ability to print and distribute about 245,000 textbooks per year, i.e. 1,2 18,000 textbooks, 122 titles Enroll 720 students, 230 output per year

Overall 39 staff years

Rehabilitation done, Faranah center was included 623 students entered Staff housing built

Objective achieved

Component was eliminated due to decentralization policies Statistical outputs obtained planning role not carried out

About 7 fellowships total (France and IDA)

studied in France, all retumed, all worked in the sector long-term Materials did not reach schools outside Conakry Building renovated still in use with most of the original fumiture and equipment Carried out as expected

Prepared 14 manuscripts, produced only about 450,000 books for 7 titles, 12,000 sold only inside Conakry

By 1992, there were only 180 graduates per year Al l fellowship recipients have retumed and worked

Completed 36.5 staff years

Schools only operate 26 weeks rather than 42 per year Few graduates placed in jobs

Institute operational, no support since the 1980s

None

Little utility during project Outputs became useful after 1995

Useful and updated educational statistics produced after 1995

No effect

Al l fellowship recipients retumed, served govemment for the rest of their careers Premises s t i l l operational

Most textbooks lost Printing office still operational but small, used for magazines and pamphlets

The institutions have been very useful in subsequent years Building in a satisfactory condition

Almost 20 years later, most fellowship recipients are working in the sector or retired

20

Components/ subcomponents Activities Targets to be

achieved outputs Outcomes

Pilot primary school construction

Project Education Projects Management Directorate

Construction, Equipment, materials, TA, fellowships, operating costs Prepare a third project

Development o f 33 schools completed community participation models Ab i l i t y to carry out Staff gained projects experience,

accountability poor

School construction staff received training, but many lef t the positions

Technical assistance Partly carried out

Very positive results, concept continued in later years PIUs later replaced w i th direct Ministry involvement

School construction department remained problematic in subsequent years

21

Table 2. Education Sector Adjustment Credit (1990-94) Components/

subcomuonents Activities Targets to be achieved outputs Outcomes

Key Policy Reforms Primary admissions ratio raised from 30 to 35%

Target exceeded, reached 52% by 1997

Committees continued to supervise after project end

Girls attending school in increasing numbers

Enrollment ratios have continued to increase

Creating a national policy and strategic framework

Committee to oversee implementation o f policy changes

Non-salary unit expenditures Primary US$0.20-> $4 Secondary US$60->$15 Technical US$15->$85 Higher US$380->$430 Regional supervision

34% o f budget for primary, 17% on materials and operation (Condition met)

US$140->310

Adoption o f spending norms for critical nonsalary inputs

Most spending norms were sustained in the long run and were actually increased

General sector management

Monitoring budget allocations and expenditures

Increasing the proportion o f the budget for education

National budget for education increased from 14% in 1990 to 25.2% in 1993; 35% for primary level About 2032 classes were built half with donor funds and half with community funds

Was carried out in 1992

Primary education budget in 2002 was 67.8% o f education budget

Adoption o f new construction norms

Develop space norms, standardized construction costs Maintain schools

Create mechanisms for funding from local-level taxes Remove barriers to creation and operation

Build 156 classes, renovate 200 as pilots for new norms, 677 to be built by other donors

Classrooms continue to be operational

Construction norms have largely been maintained

Unknown whether the measure works effectively Private education provision has increased substantially, e.g. by 24,000 students in 1997 Staff receive salaries within two weeks o f due date Unknown whether others did not assume office jobs

Multigrade teaching used as needed

Matching funds to leverage local resources Promotion o f private education

To be carried out in 1991

No specific target Carried out

More efficient use and distribution o f staff

Computerize personnel management

Computerized

Redeploy teachers from nonteaching positions

1847 redeployed

Rationalizing small schools

Establishment o f multigrade teaching

Increase multigrade rural primary schools from 7% to 20%

At third tranche, multigrade classes were to increase to 27% Not carried out Introduction o f remedial

classes Deliver instructional materials

Grade repetition remains at about 20% Transient effect. In 2003 there were almost n o materials in schools N o effect, facilities remained the same and expanded in Labe No effect, facilities remained underused Due to low quality o f education, few graduates have sufficient knowledge

Limit grade repetition

400,000 textbooks, 5000 teacher guides

Rationalization o f higher education

Reduce uneconomical facilities

Conduct two studies Study conducted

Rationalization o f technical education

Introduction o f inservice training

Reduce uneconomical facilities Creation o f consultative body for teacher training activities

Conduct a study Study conducted

Al low lower-secondary graduates to become teachers

Selective staff with these qualifications trained in Dupreka

22

Table 3. Equity and School Improvement Project (1995-2001)

Activities Targets to be achieved outputs Outcomes Components/ subcomponents

Primary education enrollment and Completion rates USS29.3 million

3900 new classrooms to increase enrollment by 270,000 students, from 471,100 to 740,000 during project

Construction o f 600 primary classrooms, rehabilitation o f 1200, fumiture for 1800 classrooms

1264 classrooms built, despite irregularities, but only 51 were rehabilitated No maintenance manual

Only one seminar took place Emergency roof replacement in 693 o f 866 schools in need

Classes remain operational

Maintenance quality control in all schools and vocational training centers through matching grants

Rehabilitation seminars, one per region Training o f maintenance staff in each VET institution

Training o f school and community staff in maintenance through local NGOs

No accountability, activity interrupted No maintenance budget

Unsatisfactory, some schools are dangerous

Limited ownership Incremental costs for establishing school construction (SNIES) in lower and middle Guinea Initiatives to improve teaching and reduce gender inequities in classrooms

No training took place

Communities contributed 10% of maintenance costs

Carried out Improve teaching and student leaming (US$18.7 million)

Equity committees

Teacher consciousness raising Study visit to Burkina Faso program

2.4 mil l ion primary books 17 titles 44,000 teacher guides

Girls’ participation i s increasing from 19% in 1991 to41%in2003.

Fewer textbooks enrollment underestimated

4 titles edited only Renting scheme did not function About 20 titles, contracted to private writers

Unsatisfactory School committees deprived o f rental revenues, books could not be renewed. Some lost

Provide textbooks equally to all students to last for 6 years in primary and secondary (cost US5.2 m)

Numerical targets met Secondary students still have no textbooks

572,000 lower secondary books 20 titles

12,500 teacher guides

Design textbooks free o f gender bias

Ensure that books are used regularly, train staff Support school staff through competitive applications for small grants

Prototype developed Training carried out

Effects unknown

Without enough textbooks, use i s difficult Highly satisfactoq

Grants and training reportedly effective in changing some teacher attitudes

A full assessment not yet conducted Activity carried out satisfactorily

Teacher groups invited to submit training and activity proposals

N o targets, average expected size 750,000 GNFrancs

More than 1200 projects funded, Over half the teachers involved in activities

Technical assistance and travel for grants evaluation and communication wi th teachers Improve learning through micronutrients, deworming, iodine supplemen tation

300 staff trained to evaluate teachers’ proposals

Proposals widely evaluated

Distribution o f antihelminths and iodine supplements for 100,000 children, in and out o f school and teachers

38 school nutrition teams nationwide, 1,130,000 children received supplements in 3 distributions

Bank procurement problems created irregular distributions.

80% not helped sufficiently, diseases st i l l

trained 12785 teachers, preva1ent:Some children

23

Components1 subcomuonents Activities Targets to be achieved outputs Outcomes

3813 associations o f retumed to school

Piloting, studies, research on micronutrients

Inservice training for teachers on gender and class interactions

Strengthen education system management (US$4.7 mi l l ion)

parents N o t all carried out as planned known about incidence

Some information already

Some bathrooms were separated, wells dug

Develop an audit unit Limited function, N o effect in the Ministry o f stopped disbursements Education due to mismanagement

Monitor student leaming Administer random Tests administered, Results showed overall tests to grades 2,4,6 only once l o w performance twice a year

Radio and intemet communication with sub-regional units

10 regional, 38 prefect- VHF radio was level antennas appropriate and effective connected, only a few communication on intemet. Newsletter published

School mapping and N e w computers and Activit ies camed out Unit strengthened in the data processing training for statistics long run

Studies for closer Annual l is t o f Legal framework for ministry-private sector accredited schools private education set up l inks published

unit

24

Table 4. Higher Education Technical Assistance Project (1996-2001)

Activities Targets to be achieved outputs Outcomes Components/ subcomponents

institutional Ministry-level studies on reorganization govemance

(US$3.6 million) Institutional-level studies on finance

Grant-funded research

Training personnel in accreditation procedures

Development o f information, communication system (USS2.0 million)

Improve data collection, analysis, decisionmaking

Computer systems acquisition at ministry and institution level

Training staff in computers Preparation o f statistical yearbooks

Increased communications

Budgetary Support for Ministry- programming and level financial monitoring (US$] .I management million)

Technical assistance to DAAF to establish competitive bidding

Support for institutional- level financial management Training o f staff in accounting, budgeting, and computer ski l ls

On quality control 6 produced issues

Governance, finance, 19 produced management, female participation, student services, user fees

Accreditation manual produced 11 private institutions

Statistical and planning offices established in each institution

8 computers and software purchased

staff trained

Yearbooks produced in 1998-2001

Telephone system installed in U. o f Conakry

Internet installed in institutions

Radio communications telephone installed

Computer network for the directorate o f administrative and financial management (DAAF) purchased and installed Computer network purchased and installed

Training carried out effectively

Disseminated discussed, limited effect

Disseminated, discussed, effect unclear

Outcomes limited, activities continuing under EFA project

Output still limited, many mistakes

Data bank developed Long-term effects expected

Effect depends on computer availability

Better understanding o f budgetary implications; Use rate o f classrooms improved Highly satisfactory

Highly satisfactory

Highly satisfactory

Unclear how funds have been spent, external and intemal audits needed

Mixed results due to suspected mismanagement in the audit functions

Network highly satisfactory

Limited; 4 o f 6 trained financial officers replaced, reportedly the more comuetent

25

Table 5. Pre-Service Teacher Education Project (1999-2002) Components1

subcomvonents Activit ies Targets to be achieved outputs Outcomes

Pre-service teacher training; USS3.3 mi l l ion

2000 thru summer program (1 cohort)

4000 in regular program

Improved teaching strategies and classroom management

Decentralized teacher career management

USS0.7 mi l l ion

Studies Project preparation facil i ty US$0.3 mi l l ion

Renovation o f institutions in Dubreka and Nzerekore Furniture and equipment as needed

Institutional development o f ENIs

Adequate and timely operating budgets Teacher certification

Decrease in unit cost o f teacher education

Development and adoption o f framework for decentralized career management

Distance education

Evaluation

Female teachers remaining stable at 25% Completed before September 30,1999

7000 trained, targets exceeded, though br ief training created quality less than expected

Programs teach methods, which student teachers may no t implement

36% trained

Teachers took up much needed instructional duties.

Older and less we l l trained teachers inhibit innovation o f new graduates

Results unknown

8 extra classes built in Nzerekore

Teacher training colleges received audiovisuals, books, computers, copiers 14 motorcycles for supervisors

Capacity increased

Instruction made more efficient S t i l l no textbooks

Ab i l i t y to supervise teachers improved

Graduates o f training programs are certified

Though o f l imi ted financial importance, a progress towards standards

Training decreased f rom 3 years to 1 or one summer, but expensive institutions Bacholieurs taken in or w i th 11 years o f education

Unit cost decreased due to shorter training at more

N o t carried out N o effect

Contract teachers are poor ly paid and no t stable

Delays in pay o f less than one month

After computerization o f rolls, t ime diminished teachers may cause

Delays less than 2 weeks in 2004; increased no. o f

lengthier delays

Training course administrators developed and implemented

for

done Prepared this project with these funds

27

Annex B. Basic Data Sheet

SECOND EDUCATION PROJECT (CREDIT 1341

Appraisal Actual or Actual as % of Estimate current estimate appraisal estimate

Total project costs 30.2 30 99.3 Loan amount 11 0.89

Cumulative Estimated and Actual Disbursements Calendar Year 1984 1985 1986 1987 1988 1989 1990 1991 ADDraiSal estimate .9 3.2 7.4 8.9 9.9 10.2 A&al .6 2.0 3.1 4.0 4.3 5.4 7.4 9.55 Actual as % of appraisal 66.6 62.5 4.18 44.9 43.4 52.9 72.5 93.6 Date of final disbursement: August 8, 1991 Note: An undisbursed amount of SDR 0.65 million was cancelled.

Original Actual Identification mission Not available Preparation 03/5-27/1981

Negotiations 02/25-03/01/1983 Board approval 03/29/1983 Signing 04/26/1983 Effectiveness 04/24/1983 12/20/1983 Credit closing 12/31/1988 12/31/1990

Appraisal 01123-02/11/1982

Staff Inputs (staff weeks)

Appraisal through Board 5.4

Supervision 93.9

Weeks Through appraisal 115.7

approval

Completion 13.0

28

Mission Data Date No. of Specializations Man-weeks in Performance rating

(monthlyear) persons representer? field by type of problem F M D G

Supervision 1 01/1984 1 A 1 Supervision 2 10/1984 2 GE, TP 2 Supervision 3 06/1985 1 GE 1 1 2 2 2 Supervision 4 11/1985 2 GE, E 2 Supervision 5 OW986 2 GE, E 2 1 2 3 3 Supervision 6 10/1986 2 GE, A 3 4 2 3 3 Supervision 7 01/1987 1 A 1 4 2 3 3 Supervision 8 0611987 1 A 1 3 2 3 3 Supervision 9 10/1987 1 E 1 Supervision 10 11/1987 1 A 1 Supervision 11 01/1988 2 A, D 1 Supervision 12 0411988 2 A, GE 1 4 3 3 3 Supervision 13 07/1988 2 A, GE 3 3 3 3 3 Supervision 14 1011 988 4 A , GE, OA, TP 4 2 3 2 2 Supervision 15 12/1988 2 A, GE 2 Supervision 16 03/1989 1 OA 1 2 3 2 2 Supervision 17 06/1989 n.a. Na NA 2 3 2 2 Supervision 18 10/1989 1 OA 1 2 3 2 2 Completion 04/1991 3 A, TE, TP 4 a. A =Architect; D = Demographer; E = Economist: GE = General Educator; TE =Technical Educator; OA = Operations Analyst: TP = Textbook Production Specialist. b. 1 = Problem-free or minor problems: 2. Moderate problems; 3 = Major problems. c. F = Financing: D = Impact on Development: G = General Performance. M = Management;

29

EDUCATION SECTOR ADJUSTMENT CREDIT (CREDIT 21 55)

Key Project Data (amounts in US$ million) Appraisal Actual or Actual as % of Estimate current estimate appraisal estimate

Total project costs 44 59.7 136 Loan amount 20.0 Cancellation 0

Cumulative Estimated and Actual Disbursements Appraisal estimate 4,000,000 6,000,000 13,000,000 20,000,000 Calendar Year 1991 1992 1993 1994-

Actual 4,371,079 6,536,698 14,030,415 21,524,132 Actual as % of appraisal 109% 109% 108% 108% Date of final disbursement: March 8, 1994

Original Actual Identification (Executive Project Summary) February 1988 February 1988 Preparation November 1988 November 1988 Appraisal May 1989 May 1989 Negotiations April 1990 May 2 4 , 1 9 9 0 Signing July 1990 September 28, 1990 Effectiveness November 14, 1990 January 14, 1991 Loan closing June 30, 1993 June 30, 1994

Planned Revised Actual Weeks US$ Weeks US$ Weeks US$

Through appraisal N/A N/A 69.40 208,200 11 6.9 *205.900 Appraisal through Board approval Board approval through effectiveness Supervision Completion Grand Total

25.40 76,200 11.9 121,200

10.40 31,200 20,400

68.40 205,200 122.7 244,200 08.00 24,000 2.0 33,000 181.60 544.800 253.5 704.700

Source: Bank Supervision Reports *Based on an average cost of US53,000/week.

30

Mission Data Date No. No. of Specializations Performance Development Types of problems

(mon th/year) of persons represen fed rating Impact days

Through 01/1988 13 2 A, EP N/A N/a N/a appraisal 04/1988 9 2 EP, E

10/1988 7 1 EP 11/1988 20 6 A,E,EP,ES 04/1989 5 1 EP

Appraisal 06/1989 14 1 EP through 09/1989 18 4 E A Board 12/1989 18 1 EP approval 02/1990 30 1 EP Board 10/1990 12 3 EP A approval through effectiveness Supervision 05/1991 13 3 SE,E,GE 2

1

Supervision 011 991 13 3 SE,GE 3

Supervision 02/1992 10 3 SE,GE,A 2

2

3

NIA N/a NA

Supervision 06/1992 16 4 SE,OA 4

2

2

2

Supervision 1 1/1992 3 2 SE,A 2 2 5

Supervision 02/1993 9 3 SE,A,OA 2 2

Supervision 05/1993 10 4 SE,E,OA 2 2

Supervision 1011 993 12 4 SE 1 1

Completion 1 1/1993 11 1 GE 1

6

7

8

0511991. Project implementation has not advanced as planned. First, counterpart funds have not been made available by the Treasury to the MOE and second, the MOE's Direction des Affaires Administratives et Financiere (DAAF) has failed to institute the required procedures. 0711 992. Serious budgevmanagement problems have hampered project implementation. 1111992. Ministry of Finance's failure to respect investment budget provisions has delayed construction. Failure to respect operating budget provisions means that 1992 conditionalities relating to expenditure levels are unlikely to be met. Overall Government monitoring continues to be disappointing. 02/1993. sector financing remains inconsistent and is characterized by delays of approximately 6 months. The Comite de suivi has not met since February 1992. Government has not yet prepared a comprehensive in-service training program for recently redeployed teachers, nor has it reorganized its pre-service trainOing program. 05/93. Government has been slow to prepare a comprehensive in-service training program for recently redeployed teachers. 1011993, In-service training programs are lagging.

31

EQUITY AND SCHOOL IMPROVEMENT (CREDIT 2719)

Appraisal estimate

Total project costs 53.0 Loan amount 42.5 Cancellation 2.54

Original Actual Board amroval 05/09/1995 . . Signing 06/08/1995 Effectiveness 06/08/1995 01/05/1996 Closing date 06/30/200 1 06/30/2002

Mission Data Date No. of Specializations represented Performance Rating

(month/year) persons rating trend Supervision 1 12/20/1996 3 1 Operations Officer S HS

Supervision 2 03/04/1997

Supervision 3 09/30/1997

Supervision 4 04/15/1998

Supervision 5 11/06/1998

Supervision 6 1011 211 999

Supervision 7 02/12/2000

2 Education

officer

1 Education Specialist

3 2 Education specialist, 1 Operations S HS

2 1 Operations Officer S HS

3 1 Task Team Leader S HS 1 Operations analyst 1 Sr. Education specialist

1 Operations analyst 2 1 Task team leader S HS

5 1 Education economist S S 3 Education specialist 1 Operations specialist

6 1 Task team leader 3 Consultants 1 ConsultanffPPSE 1 ConsultanffFIMG

S S

32

HIGHER EDUCATION MANAGEMENT SUPPORT PROJECT (CREDIT 2787)

K e y Project Data (amounts in US$ million) Appraisal Actual or Actual as % of estimate current estimate appraisal estimate

Total project costs 7.30 6.40 88% Loan amount 6.6 Cancellation 31.5 0.3%

Project Dates Original Actual

Board approval 1 1 /28/1995 Signing 02/28/1996 Effectiveness 03/31/1996 10/25/1996 Closing date 06/30/2000 12/31 /2001

Staff InDuts (staff weeks) L

ActuaVLatest Estimate No. Staff weeks US$ (‘000)

Identification/Preparation 36.2 93.2 AppraisaVNegotiation 25.1 48.6 Supervision 60.4 513.6 ICR 15.0 28.5 Total 136.7 683.9

Mission Data Date No. of No. of Specializations represented Performance Ratina

(month/year) days persons rating trend Identification/ 03/1993 4 Education Specialist, Textbook S S

S

Preparation Specialist, Vocational Training Specialist, School mapping and statistical data base specialist

Appraisal 05/1994 4 Education Specialist, Operations Analyst, S Communications Specialist, Economist

Supervision 1 12/1996 10 2 Education Specialist Supervision 2 02/1997 8 2 Education Specialist Supervision 3 03/1997 5 3 Education Specialists, Operations Officer Supervision 4 09/1997 10 1 Education Specialist, grand specialist Supervision 5 11/1998 7 2 Economist, Operations Analyst Supervision 6 12/1999 7 2 Education Specialists, School

Supervision 7 04/2000 8 2 Economist Supervision 8 10/2001 21 3 Education Specialists, Economist

construction and renovation specialist

ICR 05/2002 2 Education Specialist S S Implementation Specialist S S

33

PRE-SERVICE TEACHER EDUCATION PROJECT (CREDIT 31 19)

Appraisal Actual or Actual as % of estimate current estimate appraisal estimate

Total project costs 4.3 4.1 95.3 Loan amount 4.1 Cancellation .22

Proiect Dates 0

Original Actual Board aDDroval 07/15/1998 , , Signing Effectiveness 09/30/1998 09/03/1998 Closing date 03/31/2002 03/31/2002

ActuaVLatest Estimate No. Staff weeks US$ (‘000)

lden tification/Preparation 2.9 n.a AppraisallNegotiation Supervision

64.2 n.a

n.a n.a

ICR n.a n.a

Mission Data Date No. of Specializations represented Performance Rating

(month/year) persons rating trend Supervision 1 06/17/1999 1 1 Education Specialist HS S Supervision 2 10/19/1999 6 2 Education Specialists HS S

1 Reading achievement SP 1 Cluster leader 1 Task team leader 1 Operations specialist

Supervision 3 02/08/20002 3 1 Team leader S S 1 Implementation 1 Procurement specialist