Cameroon - Education II Project - Project Completion Report

CAMEROON : EDUCATION II PROJECT

PROJECT COMPLETION REPORT*

*Questions on this document should be referred to: Mr. J.M. GHARBI Regional Director ORCE Ext. 2060 Mr. T. B. ILUNGA Officer-In-Charge OSHD Ext. 2117 Mr. B. SAVADOGO Division Manager OSHD.2 Ext. 3163 Mrs. E. DIA Principal Programme Officer ORCE Ext. 2930

SCCD:C.H.

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Format approved by the Operations Committee on 04/03/09

PROJECT COMPLETION REPORT (PCR)

A. PROGRAMME DATA AND KEY DATES

I. BASIC INFORMATION

ADF LOAN - No. F/CAM/EDU-2/00/19 - No. P-CM-IAB-001

Project Name : EDUCATION PROJECT II

Country : REPUBLIC OF CAMEROON

ID Number of all Lending

Instruments: 2100150000203 Sector : Social Environmental Clasification : II

Original

Commitment: 7.5 million UA

Amount Cancelled : o

Amount Disbursed: 7.5 million

UA

Percent Disbursed : 100 %

Borrower: Republic of Cameroon Direct Counterpart: 0.85 million U A Executing Agency(ies) : Project Implementation Unit Attached to the Cabinet of MINEDUC and supervised by a Steering Committee. MINEDUC restructured into : MINISTRY OF BASIC ED UCATION MINISTRY OF SECONDARY EDUCATION MINISTRY OF EMPLOYMENT AND VOCATIONAL TRAINING

Co-financers and other External partners : None

II. KEY DATES

Project Concept Note Approved by Ops.Com. : 23 June 1999

Appraisal Report Cleared by Ops. Com. : 14 July 1999

Board Approval : 14 July 1999 Signature of Loan Agreement : 11 February 2000

Restructuring(s) (revision of list of goods and ser vices): a) 15January 2003 b) 29 July 2004

Original Date Actual Date Difference in months [original date – actual date]

EFFECTIVENESS 26-Dec-99 26-Dec-00 12 months MID-TERM

REVIEW 26-Dec-02 No mission (MTR) was carried out

NA CLOSING 31-Dec-04 31-Dec-2006 24 Months

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III. RATINGS SUMMARY CRITERIA SUB-CRITERIA RATING

Achievement of Outputs 4 Achievement of Outcomes 3 Timeliness 2

PROGRAMME OUTCOME

OVERALL PROGRAMME OUTCOME 3

Design and Readiness 3 Supervision 3 BANK

PERFORMANCE OVERALL BANK PERFORMANCE 3

Design and Readiness 4 Implementation 3 BORROWER

PERFORMANCE OVERALL BORROWER PERFORMANCE 3

IV. RESPONSIBLE BANK STAFF POSITIONS AT APPROVAL AT COMPLETION Regional Director L.B.S.

CHAKROUN M. GHARBI

Sector Director M.R. WANJI NGAH T. HURLEY

Task Manager Paul DOUGNA Erinna C. DIA/Michel GUEDE GBE

PCR Team Leader Judes BISSAKONOU

Cathy Lady DJEUFO

André KAMGA

PCR Team Members

Samuel NYEBEL, Consultant

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B. PROGRAMME CONTEXT

Summarize the Bank supported programme of which thi s project forms a part. State: -the macroeconomic rationale for fast disbursing as sistance to the country, -the policy or reform focus of the programme and it s relationship to the PRSP or other relevant government strategies, -the outcomes of earlier PBLs, in particular earlie r operations within the same programme, if any, and -any technical assistance or institutional support project intended to complement this operation. Please cite relevant sources. Comment on the streng th and coherence of the rationale for Bank assistance. Highlight any changes in the p rogramme context that have favourably or unfavourably affected results. [300 words maximum. Any additional narrative about the programme’s origin, if needed, must be placed in Annex 6 : Programme Narra tive]

The effects of the economic crisis and remedial measures deployed resulted in a serious decline of public resources allocated to education while the overall budget experienced an increase. The relative weight of education expenditure on the nation’s budget dropped from 14 % to 11% between 1994 and 1996. In spite of its known priorities, Primary Education no longer received the attention it deserved. Also, inequalities of access between Provinces had increased (group 1: 92 to 114 %; group 2: 42 to 54 %) while costs on parents remained very high (CFAF 45 758) worsened by the grade repeat phenomenon (40%) which constituted an enormous waste of financial resources as much for the parents as for the government.

From 1986 to 1998, the public offer for places in Primary Education only increased by 35 000 places while 551 000 places per annum were needed to retain the schooling level in 1985. Besides, most school infrastructure was made of provisional material and schools were very insufficiently equipped in table-cum-benches. The Ministry of Education had only a few trained officers in administration techniques and practices, education planning and pedagogic innovation. From the foregoing, consequent to these inequalities of access, less privileged social groups were forced out of the school system or only had rights to poor quality education. Also, Government action had to favour the reduction of these inequalities as well as the improvement of the quality of education.

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Faced with the degradation of the education system, Government organized an education forum from 22 to 27 May 1995 culminating in the “Education Sector Orientation Law” adopted in April 1998, fixing the priorities of government policy in the education sector. According to this law, education is a national priority and a right for every child. It specifies that primary education which is a State debt, is compulsory for all. In the education domain, ADB financed a single project devoted to capacity building for technical education (ENIET) [Technical Teachers’ Training College] in 1982, this project was cancelled in 1995 for non-respect of procedures for the acquisition of goods and services, and default by one of the beneficiary companies of civil- engineering works.

However, in 1998 IDB financed a primary schools construction project in the Far North, North and Adamawa Provinces worth UA 8.6 million; in 1996, the EU financed an education sector support project worth UA 10.35 million. Japanese Cooperation awarded a grant worth USD 10.242 million. The EU gave subventions worth USD 7.467 million for teaching materials for private education. Donors like UNICEF, PAM, and UNFPA gave assistance for sensitization and support activities towards the education of the girl child in the northern provinces. Sources: Appraisal Report, Education Forum Report, 1997/1998 Country Strategy Papers.

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C. PROGRAMME OBJECTIVES AND LOGICAL FRAMEWORK

1. State the specific Development Objective(s) of t his operation (as set out in this appraisal report): The sector objective of the Project is to contribute in resolving the qualitative and quantitative degradation of primary education observed for some years now in Cameroon. More specifically, this project aims at i) building design and analysis capacities of education policies of officers of the central administration and of decentralized departments ; ii) reducing inequalities of access and improving learning conditions by increasing accommodation capacities in underprivileged areas and, iii) enhancing the internal efficiency of primary education. 2. State how each project component contributes to achieving the Programme Development Objectives:

COMPONENT I: Building institutional capacities. This component aims at developing internal capaciti es for diagnosing education problems, formulating and providing strategies for improving the quality of education. In addition to the programmed trainings, the projec t aims at enhancing strategic innovation capacities in the domain of grade repeat ing. Besides, sensitization and training activities shall be offered to Management Committees to better prepare them to play their role in education development. Two ty pes of training and a pilot study have been envisaged :

a) Type I Training : It aimed at developing design and analysis capacities of education policies, targeting officers of the central adminis tration and decentralized departments of Ministries in charge of the education sector in the following domains : strategic management and planning, cost and financing of educ ation, school mapping, data collection and processing in decision making. b) Type II Training: It aimed at building the manag ement capacities of educating communities. c) Improvement of internal efficiency: It consists of conducting a pilot experience to reduce the grade repeating rate from 40% to 10% in target schools.

COMPONENT II: Reducing regional inequalities and im proving the quality of education in primary schools. This component deals with the c onstruction and/or rehabilitation/equipment of 86 schools in Provinces with low schooling rate, namely, West, North West and South West Provinces and some under-privileged areas in the Centre and South Provinces. It aims at increasing t he accommodation capacity of schools and improving teaching conditions in projec t impact areas. Achievements will include construction and/or rehabilitation and supp ly of furniture.

COMPONENT III: Project Management. MINEDUC shall set up a Programme Implementation Un it (PIU) charged with ensuring the administrative and technical management of the project under the supervision of a Steering Committee (SC). The PIU ensured the manage ment and monitoring of contracts and the purchase of goods for the project .

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3. Provide a brief assessment (up to two sentences) of the programme objectives along the following 3 dimensions: Insert a working score, using the scoring scale provided in Appendix 1. PROGRAMME OBJECTIVES DIMENSIONS ASSESSMENT WORKING SCORE

RELEVANT

a) Relevant to the country’s development priorities.

Instrument for achieving the MDGs and government’s sector strategy through globalizing and democratizing quality education.

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ACHIEVABLE

b) Objectives could in principle be achieved with the programme inputs and in the expected timeframe.

Objectives could be achieved considering the means and expected timeframe

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c) Consistent with the Bank’s country strategy paper.

This project is consistent with ADF VII orientations and the priorities defined in the CSP (1997–1998).

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CONSISTENT

d) Consistent with the Bank’s general priorities.

This project to enhance primary education falls in line with the Bank’s vision to reduce poverty by breaking down barriers which limit production assets like education.

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4. Lay out the programme logical framework. State t he expected outputs and outcomes for each action, and the indicators for measuring p rogress. Add additional rows if needed.

COMPONENTS

& EXPENDITURE

CATEGORY

ACTIVITIES OUTPUTS % ACHIEVEMENT OUTCOMES

INDICATORS TO BE

MEASURED

COMPONENT I: Institutional capacity building, two (02) types of training:

Number of Officers trained

COMPONENT I: Institutional capacity building

Activity 1) Training officers of the central administration and decentralized departments of the education sector Ministries in the following domains: strategic management

345 officers trained out of the 325 planned by the Central Administration in strategic planning and management, exploiting data and decision making, school mapping, education

106.15%

* The system of governance improved following the transformation of the administration in charge of education. *Passage from an empirical and carefree management to a forward-looking

Number of training sessions held

7 and planning, cost and financing, school mapping, data collection and processing in decision making.

cost and financing, and data collection for decision making.

management by objectives and by outputs. *Rationalizing budgetary choices. Empowerment in relation to the exterior

Number of officers trained

Activity 2) Training educating communities in preventive maintenance and appropriation.

96 trained and operational School Management Committees of the 86 envisaged for preventive maintenance, schools administration and appropriation of schools.

114.28%

Schools appropriate the participative management context.

Number of School Management Committees trained

Improving internal efficiency

Pilot experience or study-action to reduce grade repeating carried out in 150 schools in the project impact area

Pilot experience or study-action to reduce grade repeating to be conducted in 150 schools in the project impact area

The appraisal reports of International Consultant, Prof AMIN EFUETNGU, showed a 125% reduction in grade repeating

Study – action for reducing grade repeating (Pilot Experience)

The grade repeating rate dropped from 40% to 8% in the 150 pilot schools.

125%

Grade repeating rate reduced from 40 to 10 %

Grade repeating rate

Recruiting a Technical Assistant

One consultant recruited.

100%

4 proposed training sessions are held

Employment contract

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Construction and rehabilitation of 555 classrooms in 86 schools in the Provinces with low schooling rate namely: Centre, West, North West, South West and South Provinces.

729 classrooms constructed/ rehabilitated of the 555 envisaged in 116 schools distributed over 96 sites; 78 Head Teachers’ offices handed over, 396 latrines constructed, 304 cupboards installed, 37 staff houses constructed,1 infirmary constructed 17 safe water points provided.

131,35%

* the gross schooling rate in the North West and South West Provinces improved from 54 to 90 % in synergy with the other partners.* The pupil/classroom ratio improved from 150 to 62 pupils/classroom for schools in the Centre, South and West Provinces.

Number of classrooms constructed

Supply and installation of school furniture (12 000 table-cum-benches with 2 seats).

Supply and installation of: 3134 table-cum- benches of 4 seats, 1800 wooden table-cum-benches with 2 seats, 502 office tables and Teachers’ chairs, 80 offices and executive arm chairs and 304 metal lockers.

60%

Improved learning conditions and pupil/seats ratio of 150 to 62.

Improved pupil/seats ratio.

COMPONENT II: Reduction of inequalities of access and improvement of the quality of primary education

Carry out architectural studies.

* Diagnostic and architectural studies carried out in 96 schools. * Work supervision in

100% Architectural studies were carried out in all schools culminating in the preparation and forwarding of bidding

Technical Plans

9 collaboration with PIU foremen. * A control team was recruited.

documents

Preparing environment education and health education manuals

Designing and writing 7 health education and environment education manuals designed and written in English and French, including a bilingual Teachers’ Guide.

105% * All the schools have manuals and are sensitized on questions of hygiene and the environment and have included these disciplines in their school curricula.

Manuals are available in schools

Supply of 06 cross country vehicles for the Project Implementation Unit

02 Landrover Freelander and 04 Toyota Pick-Up 4x4 handed over to the Project.

100%

* Better Project supervision and execution.* Control and training missions successfully executed.

Vehicles handed over to PIU

COMPONENT III: Project management

Teaching materials

96 schools, each having a kit with 54 pieces of teaching materials.

111.62%

The schools have minimum equipment to function with.

Material available in schools

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Prepare a strategy for redeploying surplus personnel found in Yaounde and Douala

Strategy prepared by pluridisciplinary team set up by the PIU and forwarded to the competent services for implementation.

100%

Improved pupil/teacher ratio in target towns.

Strategy paper available

Support to Project Management

* One control team * three assistants

100% Effective and efficient Project Management.

Benefit contracts

5. For each of the progamme matrix’s dimensions, provide a brief assessment (up to two sentences) of the extent to which programme mat rix’s design met the following criteria. Insert a working score, using the scoring scale provided in Appendix 1. If no log. frame exists, score this section as a 1 (one).

PROGRAMME LOG. FRAME DIMENSIONS ASSESSMENT WORKING

SCORE

LOGICAL

a) Presents a logical causal chain for achieving the development objectives.

A logical design matrix of the project is prepared in the appraisal report with neither quantitative indicators nor prioritization of objectives, nor causal organization in the achievement of objectives.

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MEASURABLE

b) Expresses objectives and outcomes in a way that is measurable and quantifiable.

Objectives and outcomes were neither expressed nor quantified in a way that is measurable.

2

THOROUGH c) States the risks and key assumptions.

The logical framework stated risks such as those relating to: a lasting solution to the problems of temporal Teachers; the installation of efficient management committees and the protection of works.

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D. OUTPUT AND OUTCOMES I. ACHIEVEMENT OF OUTPUTS In the table below, assess the achievement of actua l Vs expected outputs for each major action. Import the expected outputs from the log. F rame in Section C. Score the extent to which the expected outputs were achieved. The overa ll score will be auto-calculated as the average of working scores. Override the auto-calcul ated score, if desired, and provide justification.

MAJOR POLICY REFORMS Working Score

Expected Outputs Actual Outputs

Proportion of Project cost in

percent (as mentioned in the appraisal

report)

Average score (auto-calculated)

Training of 325 Central Administration officers in the rudiments of strategic planning and management, data exploitation and decision making, school mapping, education cost and financing, data collection for decision making and technical assistance.

345 Central Administration officers trained in the rudiments of strategic planning and management, data exploitation and decision making, school mapping, education cost and financing, data collection for decision making and technical assistance.

Selection of a consultant, Drafting of modules, standardization of staff, Setting up and training 86 school management committees, Training operational school management committees.

Consultant selected, Training modules prepared, Staff standardized, 96 trained school management committees are put in place, trained school management committees operational.

4 9.461 0.37844

12 Pilot experience or study-action for the reduction of grade repeating to be implemented in 150 schools in Project impact zones (from 40 to 10 %).

Reduction of grade repeating from 40% to 8% in the 150 target schools, following the pilot experience or study-action carried out

Recruitment of a consultant for the assessment of Training Types I and II.

One consultant and a college of trainers (IIPE/l'ISMP/UNESCO) were actually recruited.

4 2.275 0.091

555 classrooms constructed and/or rehabilitated, furnished and provided with latrines, water points and staff houses in 86 schools

729 classrooms constructed in 116 schools for 96 sites, 78 Head Teacher’s offices, 396 latrines or comfort stations, 304 cupboards installed, 37 staff houses, 1 infirmary,17 safe water connections

4 69.234 2.76936

Supply and installation of 1200 table-cum- benches with 2 seats each, 550 offices and teacher’s chairs, 60 offices and executive arm chairs, 360 reception chairs, 588 metal lockers and shelves for storerooms.

3134 table-cum-benches with 4 seats each, 1800 wooden table-cum-benches with 2 seats each rehabilitated, 502 tables and 50 teacher’s chairs, 80 offices and 80 executive arm chairs, 700 cupboards incorporated as shelves, and 304 metal lockers.

2 10.125 0.2025

Recruitment of 5 foremen, and a control team.

5 foremen and a control team were actually recruited.

4 2.275 0.091

13 Design and preparation of manuals in health education and in environment education, including a bilingual Teacher’s Guide

7 manuals on health education and environment education designed and written in English and in French, including a bilingual Teacher’s Guide

Supply of 6 (six) cross country vehicles to the Project Implementation Unit.

02 Landrover Freelander delivered to the project 04 Toyota Pick-Up 4x4 delivered.

Equipment of 86 schools with teaching materials.

96 schools equipped with teaching materials.

4 1.884 0.07536

Preparation of a strategy by each pluridisciplinary team set up by the PIU and forwarded to the competent services for implementation.

Strategy prepared by PIU and forwarded to the competent services for implementation.

Taking care of PIU running costs

Running costs of PIU taken care of

4 4.264 0.17056

Achievement of 4 audits and recruitment of a cabinet in charge of writing a PIU procedures manual.

8 audits achieved and 1 PIU procedures manual written.

4 0.479 0.01916

OVERALL OUTPUT SCORE [Score is calculated as the average of

working scores] 4

Check here to override the calculated score

Provide justification for over riding the auto-calc ulated score Insert the new score or re-enter the auto-calculate d score 4

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II. ACHIEVEMENT OF OUTCOMES

1. Using available data, assess the achievement of expected outcomes. Import the expected outcomes from the log. Frame in Section C. Score the extent to which the expected outcomes were achieved or are likely to be achieved. The overall outcome score will be auto-calculated as an average of the working scores. Override the auto-calculated score, if desired, and provide justifica tion.

OUTCOMES

Expected Actual Working Score

* Improved governance system following the change of administrations in charge of education. *Passage from an empirical and carefree management to a forward-looking management by objectives and outcomes. *Rationalization of budgetary choices Empowerment in relation to the exterior

Within the framework of Training Type I and II, 345 officers are trained of the 325 envisaged in Central Administration in the rudiments of strategic planning and management, data exploitation and decision making, school mapping, education costs and financing , data collection for decision making.

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Schools appropriate the participative management framework.

The Project trained 96 operational school management committees against 86 envisaged for preventive maintenance, schools administration and the appropriation of schools. Other schools Management Committees are yet to be formed after the setting up of the Committee following the final reception of some establishments.

2

Grade repeating rate reduced from 40 to 10 %

The Project successfully carried out an experiment on grade repeating in 150 pilot schools. This experience led to the reduction of grade repeating from 40% to 8% in the project impact zone.

4

4 proposed trainings are achieved

Technical assistance comprising of a consultant and a college of trainers ( IIPE/l'ISMP/UNESCO) was recruited and held 4 training sessions.

3

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* improved gross schooling rate in the North West and South West Provinces rising from 54% to 90% in synergy with other partners. * improved pupil/classroom ratio dropping from 150 to 62 pupils/classroom for schools in the Centre, South and West Provinces.

To reduce regional inequalities in school infrastructure, the project, through Component II aimed at reducing these regional inequalities while improving the quality of Primary Education. It is in this context that the construction and/or rehabilitation and equipment of 86 schools was planned. Actually, 729 classrooms were built in 116 schools for 96 sites, 78 Head Teacher’s offices were provided, 396 latrines or comfort stations built, 304 cupboards installed, 37 staff houses built, 1 infirmary built and 40 water wells. Unfortunately, the success of this project which on the contrary attracted many pupils did not permit the attainment of expected targets as concerns the improvement of the quality of education.

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Improved learning conditions and the pupil/seats ratio dropping from 150 to 62.

As concerns supplying and installing 12 000 table-cum-benches with 2 seats in the 86 schools, only 3134 table-cum-benches with 4 seats, 1800 wooden table-cum-benches with 2 seats were rehabilitated, 502 tables and 502 Teacher’s chairs, 80 offices and executive arm chairs, 304 metal lockers were supplied below real needs.

2

Architechtural studies are carried out in all schools resulting in the compiling of bidding documents

7 foremen and a control team were actually recruited (including 1hydraulics engineer, 1furniture design expert and 2 draftsmen) to manage this activity. Achieving it resulted in the compiling of bidding documents for the works.

4

* All schools have manuals and are sensitized on issues of hygiene and the environment and these disciplines have been introduced in their school curricula.

7 education manuals on health and on the environment designed and written in English and in French, including a bilingual Teacher’s Guide and 9000 copies of teaching materials effectively delivered in 9000 schools in the country.

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* Best Project supervision and implementation. * Control and training missions successful.

The project purchased vehicles (02 Landrover Freelander and 04 Toyota Pick-Up 4x4 delivered) for its activities. Contrary to the Project Appraisal Report which envisaged a PIU staff of 24 persons divided into 10 work stations, the achievement of the project necessitated a pluridisciplinary team of 33 persons divided into 18 work stations excluding members of the Steering Committee and personnel charged with setting up the pilot experience for reducing grade repeating in schools which was supported by counterpart funds. This constituted expertise facilitated the monitoring of project implementation.

4

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Schools have a rolling stock to function with.

96 schools instead of 86 planned actually have teaching materials and a pedagogic kit with 54 elements.

4

Improved pupil/teacher ratio in the target towns

Given the imbalance of the pupil/teacher ratio in the towns of Yaoundé and Douala, the preparation of a redeployment strategy for redundant teaching staff in these towns was envisaged. The strategy was prepared by the pluridisciplinary team set up by the PIU and forwarded to the competent services for implementation.

4

Effective and efficient Project Management.

8 audits were carried out and 1 PIU procedures manual written and available.

4

OVERALL OUTCOME SCORE [Score is calculated as the average of working scores] 4

Check here to override the calculated score

Provide justification for over-riding the auto-calc ulated score Insert the new score or re-enter the auto-calculated score 4

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2. Poverty and social impact: Comment on the programme’s actual or expected eff ect on poverty, gender, access to public service, inclu sion of vulnerable groups and other key social dimensions.

The schooling rate of girls in project impact areas has risen from 86% during the implementation in year 2000 to 92% in 2007. As concerns regional integration, 12 schools were built along the border with Nigeria facilitating the social mix of the population (Government Schools: Eyumodjock, Ekok, Ekondo Titi, Weneghe Esu,…) It should be noted that the project intervention in the border areas with Nigeria is in line with an appeal from the UN Secretary General, calling for the construction of infrastructure in this region to accompany the implementation of the decision of the International Court of Justice at the Hague, on the Bakassi conflict between Cameroun and Nigeria. 3. Risks to sustained achievement of outcomes . State the factors that affect, or could affect the long run or sustained achievement of pro gramme outcomes. Summarize the current macroeconomic framework, which should be de scribed in more detail in Annex 3. Indicate if any new action or follow-up operatio n is recommended to help sustain outcomes.

I. Risks to outcomes * The general non-valorization of the education system, of Education Project II outputs, constitutes the first major risk to qualitative change in Education contained in this Project. Indeed, in a country which maintains an old pedagogic system, with a general supply of education which each year requires 4000 classrooms that is eight times the total volume of infrastructure offered by Education Project II to quantitatively achieve the MDGs, ADB’s intervention which is limited to only 86 schools out of the 9000 schools in the country, will need to be renewed. * Over-exploiting and over-using structures associated to vandalism following the lack of security and appropriation by the educating community provokes rapid degradation which damages their durability. * The lack of special funds for the preventive and curative maintenance of these structures adds to their early degradation. The non-completion of all the structures is worsened by the lack of electrical energy.

II. Hypothesis for sustainability of outcomes To ensure the sustainability of outcomes it will be necessary to envisage financing Education Project III (three) whose objectives tend to capitalize the results of Education Project II (two), which is considered an experimental project by : * seeking for other appropriation approaches while sensitizing the educating community; * perfecting the change of outdated school programmes which started within the framework of Education Project II (competence approach, long-term modules); * setting up a unit and infrastructure for continued training already started in Education Project II with the training of 1400 teachers; * setting up an observatory for academic background;

* regulating the academic flow from the Primary section which is provoked by the increase in the transition rate from the pilot experiment during the first cycle of secondary education; * completing insufficient school furniture and equipping all the 50 deficient schools with a minimum package to ensure their optimum functioning; * respecting the pupil/classroom ratio for better quality education; * perfecting the partition of the primary cycle (started in Education project II) into three sub-cycles and the institution of the automatic passage within this cycle.

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III. Economic analysis: * By assembling 300 000 pupils in 150 pilot schools, the Pilot Experience helped to reduce grade repeating from 40 % to 8 % thus bringing about a gain of CFAF 4.392 billion [(45 758 * (300 000*40% pupils) - (CFAF 45 758* (300 000*8%)] for parents and the State. In relation thereto, the expected profit in the project impact area will be CFAF 16.181 billion and CFAF 43.927 billion on the national level, against the unit cost of schooling which was CFAF 45 758 in 1999.* Lastly, the small jobs generated by the construction works of the schools especially the use of local labour (1920 employees), generated substantial financial income amounting to 1.5 billion (30% of the construction cost) which is favourable in the light of the fight against close range poverty.

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E. PROGRAMME DESIGN AND READINESS FOR IMPLEMENTATION

1. State the extent to which the Bank and the Borro wer ensured the programme was commensurate with the Borrower’s capacity to implem ent by designing it appropriately and by putting in place the necessary implementation arrangements. Consider all major design aspects such as : the ext ent to which lessons learned from previous policy-based lending operations in the cou ntry were taken into account (please cite key PCRs) ; the extent to which the pr oject was informed by robust analytical work (please cite key documents) ; ratio nale for the selection of conditionalities (number, theme, prior or post appr oval conditions); how well Bank and Borrower assessed the capacity of the implement ing agencies; scope of consultations and partnerships, and provisions made for technical assistance. [250 words maximum . Any additional narrative about implementation sh ould be included at Annex 6 : Programme Narrative]

Without specifically indicating the PCR, • Project design is nevertheless inspired by lessons drawn from Education Project I devoted to enhancing normal education (ENIET) especially in considering the low capacity to respect purchase procedures and the inexperience of beneficiary enterprises. Thus, a Lawyer specializing in contract award was appointed to head the PIU in order to level out these inadequacies. The PIU thus set up a Technical Pool as a task force for the close monitoring of companies within the purview of specific control matrices. • The bibliography annexed to the Appraisal Report shows the exploitation of at least fifteen documents and articles in designing the project especially the « Education Sector Orientation Law », studies on the Cost and Financing of Education, etc.

• The staff approved by ADB implemented the project under the required conditions. This team was however adjusted to consider operational constraints (hydraulics expert, furniture design expert, Pilot Experience Implementation Committee, etc.) and the specificity of some structures. Subject to the appropriation of the management of the project by the team, the additional expertise of technical assistance was no longer necessary as anticipated and the related cost was transferred to the extension of the schools infrastructure rehabilitation network. • Since it is difficult to quantify the economic profitability of a social project at short and medium-term, that of Education Project II was simulated from the Pilot Experience of reducing grade repeating in target schools while generalizing for the entire system if these outputs were made public. La The basis for calculation is the unit cost of grade repeating in Cameroon which is estimated at CFAF 45 758.

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2. For each dimension of programme design and read iness for implementation, provide a brief assessment (up to two sentences). Insert a working score, using the scoring scale provided in Appendix 1.

PROGRAMME DESIGN AND READINESS FOR

IMPLEMENTATION DIMENSIONS

ASSESSMENT Working Score

REALISM

a) Programme conditionality is matched with country capacity and political commitment.

The project enjoyed no feasibility study. Though simple, it was underlaid by an analysis especially in the preparation and assessment stages based on the results of the Education Forum and the subsequent Education Sector Orientation Law.

3

RISK ASSESSMENT AND MITIGATION

b) Programme design includes adequate risk analysis and mitigation measures.

The risks proved to be greater during project implementation than those anticipated especially the depreciation of the price of the UA (loan currency) and the inflation level.

3

USE OF COUNTRY SYSTEMS

c) Financial management, procurement, monitoring and/or other systems are based on those already in use by government and/or other partners.

The country’s procurement system was only used in the absence of that of the Bank. Indeed, ADB procurement rules override actual national rules. The accounting system used adopted private accounting rules as a substitute for public accounting ( SAARI Major....). Monitoring the sites finally depended on a suis généris control matrix.

4

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Working Score For the following dimensions, provide separate work ing scores

for Bank performance and Borrower performance : Bank Borrower

CLARITY

d) Responsibilities for programme implementation were clearly defined.

Responsibilities are clearly defined concerning project implementation in the appraisal report through the responsibility charter and division of labour as shown in the table attached in Annex A.

4 4

MONITORING READINESS

e) Implementation documents (documents on specifications, design, procurement, etc… were ready during evaluation.

Implementation documents were only prepared after project start-up, except maybe the Project’s accounts, administrative and financial procedures manual, which was rather prepared and written at project start-up by the C.B.M. consultant.

2 2

MONITORING READINESS

f) Monitoring indicators and monitoring plan were agreed upon before project launch.

Monitoring indicators and monitoring plan were agreed upon during the signature of the loan agreement.

4 4

BASELINE DATA

h) Baseline data were available or were collected during project design.

Baseline data collection was completed in1998. 4 4

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F. IMPLEMENTATION 1. State the major characteristics of programme imp lementation with reference to: timing

of tranche releases, waivers of conditions or trigg ers, if any, effectiveness of Bank supervision, participation of field office in conti nuous supervision, in donor coordination arrangements and in ensuring effective policy dialo gue, and effectiveness of borrower oversight. Comment on the rationale for any waivers of tranche release conditions. [300 words maximum. Any additional narrative about implementation sh ould be included at Annex 6: Project Narrative.]

Timeliness : Notwithstanding the two (2) extensions obtained compensating the absence in 2002 of any disbursement caused by the Abidjan socio-political crisis and the need to find alternatives and relays to ADB financing, the timeliness of activities corresponding to available resources was generally respected. Indeed all quantitative and qualitative objectives were attained between 2000 - 2003 within the stipulated timeframe as shown in the table in Annex A.

* The 12 months interval in relation to the effectiveness of the Project barely hides the great haste in lifting the conditionality of the first disbursement (03 months). * The time lag of the construction procurement plan subdivided in three phases, tended to adapt the execution of contracts to the different seasons and to constraints of accessibility of the sites, disseminated in the cross-border and enclaved areas. * Lastly, one of the reasons for the disturbance of the progress of companies was the relatively long time limits observed in the Bank’s response to settle 72 of the 137 requests for payment. That is why some companies were sometimes obliged to pre-finance the contracts. Generally, Project performance depended on the time frame necessary for the treatment of the request by mobilizing additional financial resources.

Bank Supervision and Government Monitoring: With an average of two per year, most mixed supervision missions were regular and helped to identify and solve major problems. The instability of these supervision teams neither gave them time to anticipate the risks of fluctuating loan currency prices nor uncontrolled inflation. The Treasury’s choice to make 95% of the disbursements in foreign currency overrunning the initial quotas anticipated favoured the loss of these resources.

Monitoring by the Borrower: Monitoring by the Borrower was very good. Beyond the anticipated limits, he mobilized the totality of his direct and indirect counterpart and excelled in the search for additional resources to finance the gap following the loss on exchange in application of section 12/c of the general terms and conditions governing lending agreements. By building 13 fences to secure some schools exposed to vandalism, he even compensated for the inadequacy of the educating community. The anchoring of the PIU to the Minister’s cabinet and its long consistency attest to the proper understanding of the necessity of the Project and the PIU which the Borrower however failed to set up as a unique implementation office for all socio-educative projects as recommended by the appraisal report. The CAA requested the Superior State Control to audit Project accounts and carry out achievement visits on the field.

23

Quality of the Constructions: The infrastructure put up is of good quality and is generally functional. This infrastructure, by its remarkable architecture is well appreciated by the beneficiary population and encourages the influx of pupils. Administrative authorities sometimes threaten to confiscate staff houses meant for Head Teachers. However, the equipment, though of good quality is quantitatively insufficient just like the supply of all the schools with structures. The optimum functioning of these structures specifically and all other works depend on electrical energy whose permanent unavailability can relativize its impact on social development. 2. Comment on the role of other partners (e.g. other international financial institutions, donors, UN agencies, etc…). Assess the effectivenes s of co-financing arrangements and of donor coordination, if applicable.

Role of other partners: Being a mirror effect Project, Education II constituted a good data base for the other technical partners (AFD,Japan, Guinée Conakry) which limited themselves to collecting information from this Project to ensure the duplication of the Project’s model (either the design of certain works or even the structural organization of the PIU, etc…). Co-financing arrangements : Jointly financed Project between ADF and Government, its activities benefited from no other source of financing. 3. Harmonization and Alignment . State whether the Bank made explicit efforts to adhere to the following Parts Declaration Principles.

Education Project II was prepared in concert with UNESCO for the sake of synergy and complementarity and to share intervention areas: IDB (Northern Provinces), the World Bank and the EU. However, some centres of disagreement were discovered especially the strategy of the fight against grade repeating in schools. The World Bank recommended their administrative and regulatory suppression while the ADB proposed a pedagogic approach based on the tryptic : « experimentation – assessment – generalization » Even the reform of the assessment system of pupils by the World Bank (PASE) duplicates the pedagogic technologies implemented by the ADB Project (competency based approach with formative assessment ), accounting for energy dispersal which is detrimental to the denseness or amplification of the operations. Lastly, the design of works built through cooperation with the Bank is essential in relation to other works by development partners.

24

4. For each dimension of project implementation, as sess the extent to which the following criteria were met. Provide a brief assessment (up t o two sentences) and insert a working score, using the scoring scale provided in Appendix 1. PROGRAMME IMPLEMENTATION DIMENSIONS ASSESSMENT Working

Score

Difference in months between original closing date and currently expected closing date or the date of achievement of 98% disbursement

TIMELINESS

a) Extent of project adherence to the original closing date. If the number on the right is below 12, 4 is scored; between 12.1 and 24, 3 is scored; between 24.1 to 36, 2 is scored; beyond 36.1, 1 is scored.

24 months

The relocation of the ADB from Côte d'Ivoire to Tunis caused inconveniences and is at the origin of the breakdown in contacts with TM in the head office and collaboration difficulties in the processing of documents.

3

b) Bank enforced :

Environmental Safeguards (if applicable)

The project belongs to environmental category II. The schools built which did not need huge reforestation and deforestation works consequently preserved the environment. The gutters constructed around the structures ensured good drainage while the latrine block inferred good conduct through hygiene and sanitation. Lastly, the appraisal report anticipated quickset hedges around the school structures as well as open spaces within the schools.

4

Fiduciary Requirements

The volume of disbursement in foreign currency was higher than planned. Also, the annual disbursement calendar for year 2002 was not respected.

2

Conditions and Triggers

The commitment made in the appraisal report to generalize the entire outputs package of the pilot experience of reducing grade repeating after identifying the priorities thereto. This commitment has not yet been implemented.

2

BANK PERFORMANCE

c) Bank provided quality supervision in the form of skills mix and practicality of solutions.

Bank supervision was good with an average of two (2) mixed missions per year. These missions helped to find solutions to major problems. Otherwise, although programmed, no Mid-term Review mission was carried out.

3

25

d) Bank provided quality management oversight.

Three (3) unexpected audits (in addition to 8 planned audits) supervised financial management and the regularity of procurement methods. As indicated above, the specific objectives of these 3 extra audits were to audit procurement, project auditors and carry out a financial supervision. Regarding the implementation of audit recommendations and the clearance of auditors, only the first 2002 audit report had recommendations from the Bank that were implemented. For the other 7 audit reports, the Bank has only acknowledge receiving them but did not make recommendations.

4

e) Borrower complied with:

Environmental safeguards (if applicable)

By choosing appropriate sites, the borrower enabled the building of school infrastructure without too much deforestation and terracing works. The latrine block was built at a good distance from watercourses to avoid polluting the water table, wildlife and even flora. Lastly, the Borrower made the educating communities organize open spaces as in Government School BAFIA, EFOULAN....

4

Fiduciary Requirements

The borrower went largely beyond his initial financial or fiduciary commitments by mobilizing beyond the legal Project term (9 years) all necessary allocations on account of the Project’s direct and indirect counterpart. He even excelled in the search for additional resources to compensate losses caused by the fluctuation of loan currency.

4

BORROWER PERFORMANCE

Conditions and Triggers

The borrower complied with all the agreements reached within the framework of the project, only failing in his obligation to establish Education Project II as an implementation office for all social educative projects with foreign financing on the one hand and to ensure, on the other hand, the immutability in their positions as teachers and officers trained within the framework of the Project, certainly for reasons linked to the multiple restructurings of the administrative bodies in charge of education.

3

26

f) Borrower was responsive to Bank supervision findings and recommendations.

Notwithstanding Government’s budgetary constraints, which did not permit the progressive satisfaction of all requests for financial resources necessary for the perfecting of the Project’s complete programme, it was responsive to the findings and recommendations of the 21 launching, dialogue, portfolio review and Project supervision missions.

3

g) Borrower collected and used monitoring information for decision making.

Not applicable. NA

27


G. COMPLETION

1. Is the PCR delivered on a timely basis, in compl iance with Bank policy?

Date of last disbursement

Date PCR was sent to [email protected]

Diff

eren

ce in

m

onth

s WORKING SCORE

(auto-calculated) If the difference is 6months or less, a 4 is scored. If the difference is 6.1 or more, a 1

is scored.

27/10/2006 March-07 5 4

Briefly describe the PCR process. Describe the Bo rrower’s and co-financers’ involvement in producing the document. Highlight a ny major differences of opinion concerning the assessments made in this PCR. Descri be the team composition and confirm whether a site visit was undertaken. Mentio n any major collaboration from other development partners. State the extent of fie ld office involvement in producing the report. Indicate whether comments from Peer Rev iewers were received on time (provide names and positions of Peer Reviewers).

Preparing this PCR version and forwarding it to ADB in March 2007 Launching and fixing the date for the mission by ADB and Government’s referral. Documentary search Discussion and exchange on TDRs Preparing and describing the list of schools Finalizing the list of schools to visit. Target visits of a specimen of 38 schools in collaboration with the Minister of the Plan, PIU. Discussion with beneficiary communities, local education authorities. Meeting with technical and financial partners (AFD, UNESCO and JICA) Idea exchanging conference with the pilot experience implementation committee. Working conference with PIU (disbursement, procurement). Working conference with Directorate of Regional Integration (DIR) of the Ministry of Planning.

*Much more duplication than incoherence in the document: The assessment method is too standardized thus less prescriptive. The synthetic index approach would have better federated the other assessors. * Composition of the team: Judes BISSAKONOU, Head of mission Cathy Lady DJEUFO, member (CMFO) André KAMGA, member (CMFO) Samuel NYEBEL, Consultant, member Joseph Frédy POUTH POUTH, DIR/MINEPAT, member Thomas MATIP MATIP, PIU Coordinator, member* The Regional Bureau was the driver of the preparation mission of this PCR which had favourable exchanges with the other partners of the area.

28

H. LESSONS LEARNED

Summarize key lessons for the Bank and the Borrower suggested by the pro gramme outcomes. [300 words maximum . Any other statement on the implementation shall b e presented in Annex 6 :Programme Narrative]

• Education Project II was an experimental project whose outcomes were good. It is one of the rare projects where disbursement was completely done within the normal implementation time frame. In the absence of ADF financing, and to regularize the payment of corporate contracts, Government supplemented external financing by mobilizing its own resources from the investment budget and those of other partners within the framework of HIPC resources to complete the work. Until the preparation of this completion report, the team of 33 persons who constitute the Project’s PIU stayed on the spot to ensure the monitoring of the project and was maintained using autonomous resources. • With respect to the pilot experience this project has built the capacities of human resources with a view to subsequently popularizing the benefits to the entire country in a similar project which has not taken off, thus the waste of trained human resources.

• The project targeted among other objectives the improvement of the quality of education especially the improvement of the pupil/teacher ratio. Unfortunately, this project was not achieved partly due to the insufficiency of the infrastructures built and partly because of the surge of pupils to these schools. The mission thus observed that in some schools, some classrooms were over-populated having up to 6 to 7 pupils per table-cum-bench, that is, about 80 to more than 100 pupils per classroom. Pedagogic officers explain this overcrowding of classrooms as a result of pressure from parents, education and political authorities who at all cost want to register their children in a “beautiful school” without considering the enrolment capacity of the establishment. • Field visits helped the mission to note that more than 95% of the toilets built were not functional, either owing to the lack of operational water points since most of the water points or boreholes constructed had no water either because there was no water or because of low electrical pressure for the catchment system. This situation is dramatic and causes problems of hygiene in the immediate vicinity of the schools concerned.

Appropriation is a major problem in this project even though a programme for the training of school management committees to take over the management of schools was anticipated. Actually, since the promulgation of the law making Primary Education free, Government also rendered contributions for the Parent/Teacher Association (PTA) optional. These PTAs in the meantime more or less contributed to the maintenance of schools (through paying salaries of Teachers (employed by PTA), guards, general cleaning, paying of electricity and water bills, etc.) With this law, most PTAs are not operational because they do not want to use their private resources to maintain school structures. School infrastructures are thus abandoned to degradation, acts of vandalism (in spite of the visible anti-vandalism sensitization placards). The mission equally noted the phenomenon of overuse of classrooms by strangers to the school (students on holidays use them and pay rents to school officers) which leads to the rapid degradation of the infrastructure. • The mission further noted a detail (also shared by the Japanese mission, JICA, a partner in the construction of schools), that schools in English speaking areas are better maintained and preserved that schools in other areas of the country.

29


I. RATINGS SUMMARY All working scores and ratings are auto-generated by the computer from the relevant section in the PCR

CRITERIA SUB-CRITERIA Working Score

Achievement of outputs 4 Achievement of outcomes 3 Timeliness 3

PROGRAMME OUTCOME

OVERALL OUTCOME SCORE 3 Design and Readiness Programme objectives are relevant to country development priorities

4

Programme objectives could in principle be achieved with the project inputs and in the expected time frame 4

Programme Objectives are consistent with the Bank’s country strategy paper 4

Programme objectives conform to overall Bank priorities 4 The log. Frame presents a causal chain for achieving the programme development. 1

The log. Frame expresses objectives and outcomes in a way that is measurable and quantifiable 1

The log. Frame states the risks and key assumptions 4 Conditionality is matched with country capacity and political commitment 4

Programme design includes adequate risk analysis and mitigation measures 3

Financial management, monitoring and/or other systems are based on those already in use by government and/or other partners.

4

Responsibilities for programme implementation were clearly defined. 4 Implementation documents (documents on specifications, design, procurement, etc.) were ready during evaluation. 2

Monitoring indicators and monitoring plan were agreed upon 4 Baseline data were available or collected during programme design. 4 DESIGN AND READINESS SUB-SCORE 3 Supervision: Bank enforced: Environmental safeguards (if applicable) 4 Fiduciary requirements 2

BANK PERFORMANCE

Covenants and Triggers 2

30

Bank provided quality supervision in the form of skills mix and practicality of solutions 2

Bank provided quality management oversight 4 PCR was delivered on a timely basis 4 SUPERVISION SUB-SCORE 3 OVERALL BANK PERFORMANCE SCORE 3 Design and Readiness Responsibilities for programme implementation were clearly defined 4 Implementation documents (documents on specifications, design, procurement, etc…) were ready during evaluation 2

Monitoring indicators and monitoring plan were agreed upon before project launch; Baseline data were available or collected during programme design.

4

DESIGN AND READINESS SUB-SCORE 3

Implementation Borrower complied with : Environmental safeguards (if applicable) 4 Fiduciary Requirements 4 Conditions and Triggers 4 Borrower was responsive to Bank supervision findings and recommendations

4

Borrower collected and used monitoring information for decision making NA IMPLEMENTATION SUB-SCORE 4

BORROWER PERFORMANCE

OVERALL BORROWER PERFORMANCE SCORE 4

31

J. PROCESSING

STEP SIGNATURE AND COMMENTS DATE

Sector Manager Clearance

B. SAVADOGO

Regional Director Clearance J.M. GHARBI

Sector Director Approval T. HURLEY

32

IMPLEMENTATION CALENDAR

ACTIVITY RESPONSABILITY ORIGINAL DATE

IMPLEMENTATION DATE COMMENTS

Presentation Administration

ADB June-99 5 July 2000

Loan Agreement ADB/GVT July-99 11 February 2000

Installation of PIU GVT Oct-99 10 August 2000

Loan Implementation ADB/GVT Dec-99 26 December 2000

Recruitment of Arch.

ADB/GVT March-00 19 March 2001

Recruit. TA/Audit GVT

Dec. 1999 -

June 2000

28/12/2001 (2001-2002)

04/08/2004 (2003-2004)

11/05/2005 (2005-2006)

Mid-term Evaluation ADB/GVT Dec. 2001 Oct 2001/ Oct 2003

Project end PIU Nov. 2003 Dec-06

Completion Report ADF/GVT June-04 March-07 Study and Supervision Achievement- control of research

PIU/BET March – June 2000

13 June 2003 to 04 Aug 2004

Construction –Rehabilitation Preparation et Transmission BD

PIU/GVT March – Aug 2000

31/05 - 26/07/2002 22/12/2003 20/08/2004

No objection from ADB ADB Sept. 2000 Dec 2001 / Feb

2004

Launching of BD PIU Sept.- Oct.

2000 May-02

33

Bid opening and analysis of tenders PIU Nov. 2000 09/08/2002

No objection from ADB ADB Dec.2000 Oct 2002 /Feb 2004

Award PIU Jan. 2001 Dec-02

Works implementation Companies

Feb.2001 –

Jan. 2003 Jan-03

Furniture/Equipment/ Teaching Materials Preparation / Forwarding of BD

PIU 2-Oct.-2001

20/08/2001 11/03/2002

No objection from ADB ADB July. 2001 31/04/2002

Launching BD PIU Aug – Sept.2001

26/04 - 10/05/2002

Bid opening and analysis of tenders

PIU Dec. 2001 01/10 - 15/12/2003

No objection from ADB

ADB Feb. 2002 31-Oct.-02

Award PIU April-02 Dec-02

Implementation and delivery Suppliers

Oct.2002 –

Mars 2003 Feb-03

Training Training of MINEDUC officers

PIU/Consultant March 2000 –

May 2001 Jan-02

No objection from ADB ADB

March 2000 –

May 2001 28/12/2001

Training of regional administrative staff PIU/Consultant

Sept.2000 –

Sept 2001

18/10/2002 23/04/2002 22/05/2002

Pilot Experience of reducing grade repeating

PIU/Consultant Sept.2000

– Sept 2002

2001 - 2003

Audit Audit Mission Audit Bureau

Jan. 2000 –

Nov. 2003 2001 - 2006

APPENDIX 1

Scale for Working Scores and Ratings

SCORE EXPLANATION

4 Very Good - Fully achieved with no shortcomings 3 Good – Mostly achieved despite a few shortcomings 2 Fair – Partially achieved.

Shortcomings and achievements are roughly balanced 1 Poor – Very limited achievement with extensive shortcomings NA Non Applicable

Note: The formulas round up or down for decimal poi nts. Only entire numbers are computed.

35

Annex, 1 : Project Cost and Financing

Table 1: Project Cost by Component

In CFAF million In UA million %

COMPONENTS Dev. M.L. Total Dev. M.L. Total Dev.

I. Institutional capacity building

(02) TYPES of training

207.42 296.90 504.33 0.26 0.37 0.63 41.26

II. Reduction of inequalities of

access and improvement of the

quality of primary education

2742.36 2241.59 4983.96 3.43 2.81 6.24 54.96

III. Project management 271.16 201.54 472.70 0.34 0.25 0.59 57.62

Total base cost 3220.95 2740.04 5960.98 4.03 3.43 7.46 54.02

Contingencies 202.25 178.21 380.46 0.25 0.22 0.48 52.08

Price escalation 179.96 153.50 333.46 0.23 0.19 0.42 54.76

Total project cost 3603.16 3071.75 6674.90 4.51 3.84 8.35 54.01

Table 2 : Project Cost by Sources of Finance

in UA million % %

Sources Dev. M.L. Total Dev. Total

ADF (Grant) 4.51 2.99 7.5 89.80

Government 0.85 0.85 10.20

Total project cost 4.51 3.84 8.35 100

% Total 53.98% 46.02% 100%

1 UA= CFAF 940, 54; 1 UA= USD XXXXX at project launch (NA)

36

Table No.3 : Annual Disbursements

ANNUAL LOAN DISBURSEMENTS (In UA million)

Years

Elevation

Estimate

Real

Disbursements

% of

Disbursed

Loan

Cumulated

Disbursements

% Cumulated

Disbursements

2001 0.01 0.13 1.55 0.13 1.1

2002 1.6 0.26 3.11 0.39 2.22

2003 3.47 1.9 22.74 22.29 16.16

2004 3.02 3.41 40.81 5.7 29.02

2005 0.25 2.9 31.79 8.6 24.68

2006 0.31 8.91 2.64

2007 1.72 1.63 14.64

2008 0.62 11.25 5.28

2009 0.5 11.75 4.26

Total 8.35 11.75 100 11.75 100

37

Annex 2 : Bank Contributions, Supervision Missions. Scores of the

Last Mission

a) Bank Contributions and Supervision Missions

Table No.1 : Supervision Missions

MISSIONS START DATE END DATE DURATION

(DAYS)

COMPOSITION

Supervision 10/09/2000 26/09/2000 17 - P. K. DOUGNA, Head of mission


Launching 28/03/2001 06/04/2001 10 - P. K. DOUGNA, Head of mission

- M.L. LEGOJEU DEJEUJEU,

Project coordination : ADB



Accounting audit 2002 -

Supervision 16/06/2003 28/06/2003 13 - N. SAFIR, Head of mission

- M. A. CISSE, Architect

- L. B. S. CHAKROUN, Health

expert

Supervision 13/10/2003 30/10/2003 18 - L. B. S. CHAKROUN, Health

expert

- M. A. CISSE, Architect

ADB portfolio review 10/11/2003 22/11/2003 13 - L. B. S. CHAKROUN, Head of

mission

- A. BERNOUSSI

- H. NOUDEDJI

- B. TRAORE

- P. DOUGNA

Procurement audit 2003 (Without aide

mémoire)

14 - M. VARANGO

38

Supervision 21/03/2004 01/04/2004 12 - M. A. CISSE, Architect - E . - C. DIA, Head of mission

Dialogue 28/06/2004 10/07/2004 14 - N. SAFIR, Head of mission - M. CHAKROUN, Health expert

Dialogue 22/11/2004 04/12/2004 13 - EL BAKRI Head of mission - E. C. DIA

Supervision 19/11/2004 03/12/2004 15 - E. C. DIA, Head of mission

Financial supervision 25/06/2004 12/07/2004 17 - M. C. DIGUIMBAYE

Accounting audit 2004 (Without aide

mémoire)

- - M. OSWALD

- M. COULIDALY

- M. BLAISE

Social assistance

evaluation Mission

10/10/2005 31/10/2005 22 - M. P. A. ROCHON

- M. M. SANOU


- A. CAPO, Consultant Architect



Portfolio review 06/11/2006 19/11/2006 14 - M. GHARBI Head of mission - M.J. MURARA - M. DIOP LY - M. DAGAMAISSA - M. A. BERNOUSSI - M. S. TOUNKARA - M. B. TRAORE


Preparation of

completion report

08/11/2009 30/11/2009 13 - J. BISSAKONOU, Head of mission, CMFO

- A. KAMGA, CMFO

- C .L. DJEUFO, CMFO

- S. NYEBEL, Consultant Architect

- T. MATIP MATIP, Education II

- A. ZEUFACK, Education II

39

Table 2: Summary of Major ADB Recommendations During Supervision Missions

DATE

TYPE OF

MISSION

AJUSTMENT(S) MADE

21/06/2001 Supervision - Recommendation to recruit just one (international) firm for all training in

lieu of specific consultants for each specialty.

- Recommendation declaring the inappropriateness of recruiting two (2)

firms charged with implementation procedures and auditing

(21/06/2001).

- Recommendation to recruit support staff (surveyor, draughtsman) –

aide mémoire of 21/06/2001.

14-

26/10/2001

Supervision - Recommendation to increase the dimension of the pilot experience

sample :

� At the level of primary school classes, [Class 2 (CP1)and Class 6 (CM2) instead of Class 2 (CP1), Class 3 (CE1)and Class 6 (CM2)] � At the level of the number of classrooms, from 450 to 1100 � At the level of costs from 150 to 300 million, � With the subsequent addition of a new control variable, the competence approach in addition to initially programmed compensatory classes.

- Recommendation to change the strategy for the purchase of manuals

because of the unavailability in the local market of books on health

education and on the environment advocating the preparation of

adapted manuals by a national team.

- Recommendation declaring the inappropriateness of recruiting an

Architect for 48 months, following the substitution of the project’s team of

engineers, with their quality and experience in building schools, for the

Architect.

40

14-

25/09/2002

Supervision - Recommendation to suppress the purchase of vehicles for district

inspectors and to allocate the resources provided to financing the cost of

the pilot experience (aide-mémoire from 14 to 26/10/2001).

- Recommendation to acquire supplementary computer equipment for

the pilot experience and the SPSS software.

16-

28/06/2003

Supervision - Revision of the Goods and Services list.

19/11-

13/12/2004

Supervision - Recommendation to terminate the SADEG contract and for the

project’s only technical team to continue supervision of the works.

- Recommendation to resort to HIPC funds for the financing of the

project’s outstanding works.

- Recommendation to resort to the services of chain corporations for the

correction of faults.

02-

16/05/2005

Supervision - Recommendation to terminate certain furniture contracts and re-award

them after new consultations.

- Recommendation to extend the auditor’s mandate to cover the

supplementary project implementation period.

15-

25/05/2006

Supervision - Recommendation to reformulate prepared education manuals on

health and on the environment by favouring competence (aide-mémoire

from 15 to 25/05/2006).

26/12/2006 Supervision - Recommendation to reformulate training modules for school

management committees (aide-mémoire of 26/12/2006).

41

b) Working Score Given During the Last Supervision Mission

Table 3 : Key Team Members During Project Preparation and Supervision Missions

TYPE OF MISSION TEAM POSITIONS WORKING SCORE

L.B.S. CHAKROUN Regional Director

M.R. WANJI NGAH Sector Director

Preparation

Paul DOUGNA Head of Project

Paul DOUGNA Task Manager

Erinna C. DIA Task Manager

Cisse MAKHETTE Architect, Alternate TM

A. CAPO Architect Consultant

B. WERY Architect Consultant

N. SAFIR Head of Division, Social

Development Department

Supervision

Z. EL BABU Director of Social

Development Department

Good

(Mission from 30/11/06 to

09/12/06)

Judes BISSAKONOU Social Development

Specialist, Head of Mission

André KAMGA Disbursements Assistant

Completion

Cathy Lady DJEUFO Procurement Assistant

42

Annex 3. Project Objectives, Description and Formulation

1. Objectives

The sector objective of this project according to the evaluation report, is addressing the qualitative and

quantitative decline of primary education noticed in Cameroon for several years now. More specifically, the

project sets out to : i) build the capacities of officers in the central administration and decentralized

departments to design, analyse and implement education policies; ii) reduce inequalities of access and

improve learning conditions by increasing the accommodation capacity of areas with a low schooling rate and,

iii) better the internal efficiency of primary education.

2. Description

The achievement of outputs from the project can be summarized thus:

i. 325 directors, senior officers and agents of the DPE and DDE trained in the rudiments of strategic planning and management;

ii. 86 school management committees trained and provided with management manuals in the year 2000 ;

iii. a pilot experience conducted on the strategies for reducing the grade repeating rate and to sensitize all involved in education;

iv. 86 schools or 556 classrooms built and/or rehabilitated, furnished and provided with safe water, latrines and staff houses (50) ;

v. 9 000 health education and 9000 environmental education manuals supplied to all schools countrywide ;

vi. 11 cross country vehicles provided for district inspectorates and; vii. assistance given to the education project implementation unit.

Certain expected outputs were redefined by the supervision missions notably those related to outputs (v) and

(vi) which become respectively: (a) to prepare health education and environment education manuals and (b) to

provide 6 vehicles for the PIU only.

To attain the aforementioned objectives, three (3) components were identified:

a) Institutional capacity building ; b) Reducing regional inequalities and improving primary education ; c) Project Management.

2.1 Component I. Institutional Capacity Building

This component aims at developing i) internal capacities to diagnose education problems, formulating and

implementing strategies to improve the quality of teaching, ii) strategic innovation capacities to reduce grade

repeating, through a pilot experience carried out in 150 schools. Two types of training were organized for the

target population : i) training officers of the central administration and the decentralized departments of

Ministries of the education sector in strategic management and planning, costs and financing, school mapping,

43

collection and use of data in decision making and, ii) training educating communities in preventive

maintenance and appropriation. As concerns the pilot experience, it consisted of a study-action for the

reduction of grade repeating from 40% to 10% in target schools.

In terms of output, more than 345 senior officers instead of 325 anticipated were trained (Type I training) in the

central administration on issues of strategic planning and management, the exploitation of data and decision

making, school mapping, cost and financing of education, data collection for decision making, school statistics

and micro planning. For Type II training, 96 school management committees were trained of the 86 envisaged

in preventive maintenance, school administration and appropriation of schools. Other school management

committees will be formed after the actual equipping of their establishments.

With regard to the pilot experience to reduce the repeating rate, the strategy adopted consisted of offering

upgrading courses (make-up classes) to pupils with difficulties in nearly 150 primary schools (a third of which

will be concentrated around Yaounde, Bafoussam and Bamenda towns). The make-up classes will be taught

by redundant teachers in the urban centres or they will teach extra hours if necessary. The experience thus

permitted the reduction of the repeating rate from 40% to 8% in the 150 target schools. In the light of this

success, Government proposed Education Project III to spread the experience to the 9 000 primary schools

nationwide.

2.2 Component II. Reducing Regional Inequalities and Improving Primary Education

From reports on regional inequalities in schools infrastructure, the project, through this component aimed at

reducing these regional inequalities while improving the quality of primary education. It is within this context

that the building and/or rehabilitation of 86 schools was envisaged (that is about 555 classrooms) in the

underprivileged areas of the Centre, West and South Provinces, with a view to increasing the accommodation

capacities of schools and improving training conditions in project impact areas. Besides construction and/or

rehabilitation, it was a question of equipping the establishments concerned with furniture and school kits, to

carry out architectural studies in all schools.

At the level of constructions/rehabilitations, 729 classrooms were constructed/rehabilitated of the 555 planned

in 116 schools spread over 96 sites. Furthermore, 78 Head Teacher’s offices were delivered, 396 latrines built,

304 cupboards installed, 37 staff houses constructed, 1 infirmary built and 17 safe water points provided.

To equip the classrooms, the following pieces of furniture were installed : 3134 table-cum-benches with 4

seats, 1800 wooden tables with 2 seats, 502 office tables and Teacher’s chairs, wooden table-cum-benches

with 2 seats, 502 office tables and Teacher’s chairs, 80 offices and executive arm chairs and 304 metal

lockers. According to Government’s completion report, ADF resources being insufficient from the first phase of

the project, recourse was made to the Public Investment Budget (PIB) and HIPC resources during the second

phase to complete the civil engineering works in conformity with ADB recommendations (cf. confirmation letter

of the 26 December 2006 aide-mémoire), requesting Government to « mobilize the necessary funds before

the project completion mission, from HIPC funds and the 2007 PIB to cover the complete civil engineering

works and the purchase of furniture for the project and discharging of the remaining contracts». Work which

continued after the exhaustion of ADB funds on counterpart funds and HIPC resources permit an estimate of

44

Government’s contribution within the framework of this project at almost 35% of the loan. Certain defects were

noticed during field visits such as problems of cracking, resistance to leaking, poorly made screeds, poorly

made or insufficient furniture, etc. The PIU reckons that for these other works, retained payments of the

companies will permit the making of adequate corrections.

In spite of these indisputable efforts, the country’s needs remain enormous since to attain the MDG by 2015,

Cameroon will have to build at least 4 000 classrooms each year to satisfy all its needs and hope to satisfy the

MDG indicator in the education domain.

2.3 Component III. Project Management

Project management was done by PIU under the technical supervision of a Steering Committee.

In addition to administrative management, the PIU had to coordinate all activities, monitor the management of

contracts and their implementation, prepare quarterly activity and audit reports. The project had to purchase

furniture, equipment and 6 vehicles for its functioning. Government’s completion report shows that the project

managed about 132 contracts during the project implementation period involving more than 36 companies with

a 100% disbursement rate. The purchase of goods and services respected the procedure laid down in the

appraisal report. In all 49 contracts were awarded for civil engineering works, 18 for the supply of furniture and

4 for the services of Consultants. One of the major difficulties was the distance and inaccessibility of school

sites which resulted in long implementation delays, the abandonment of some building sites, etc. Seven (7)

contracts were terminated for non implementation of services and/or abandonment. These contracts were re-

launched and reallocated.

Contrary to the project Appraisal Report which envisaged a PIU membership of 24 persons distributed in 10

work stations, project achievement required 33 persons distributed in 18 work stations excluding members of

the Steering Committee and the personnel charged with implementing the pilot experience of reducing grade

repeating, which was financed by counterpart funds.

Project staff reporting to the cabinet of MINEDUB enhanced better coordination of activities, rapid decision

making and hitch-free communication to avoid conflicts of interest. Technical reorganization helped the project

to acquire all the necessary skills for project implementation such that all project activities were achieved

within the prescribed time frame. During the project completion mission, it was noted that all 33 project staff

stayed in office and functioned thanks to annual resources allocated by Government.

45

3. Financial Analysis of Project

1) Working Capital

A comparison of available data in the SAP shows that an advance on working capital at the disposal of the

Project’s PIU is only 43% justified. This means that the project has not yet justified UA 1 095 109 (during the

appraisal report).

Table No.1 : Situation of Education II’s Working Capital in the SAP

CFAF

Advance Advance

Date

Amount

Received

Amount

justified

Remainder to justify

RF N°2 07-Nov-01 236 758 176 169 416

000

67 342 176

RF N°5 18-Mar-03 462 323 034 271 327

628

190 995 406

RF N°35 29-Mar-04 425 752 194 214 762

196

210 989 998

RF N°97 08-Mar-05 407 634 560 0 407 634 560

Total 1 532 467 964 655 505

824

876 962 140

% 43% 57%

The PIU claims that it has justified all the funds put at its disposal. However, we were not able to access the

document proving this affirmation.

2) Loss on Exchange

In its completion report, the PIU mentioned that as a result of the understatement of the project, and the

erosion of the UA, the project lost more than CFAF 390 million. Whereas looking at the ledger extracted from

SAP, the project disbursed UA 7 500 000, which is 100% of the loan. As a result of the fluctuation of the Unit

of Account, disbursements estimated at the UA price during project evaluation amounted to UA 7 425 836,

which is a loss on exchange worth UA 74 164 (about CFAF 60 million). This loss on exchange represents less

than 1% of the loan amount, and its impact on project achievement is insignificant.

46

3) Monitoring of Contracts

Government’s completion report mentions that ADB honoured its disbursement requirements corresponding to

132 contracts. However, the SAP system shows that during its implementation, the project concluded 72

adjustable contracts according to the direct payments method. During the preparation of this completion

report, 67 local contracts which had to be settled in CFAF were not yet cleared in the SAP, for CFAF

712 865 051 (UA 890 192) outstanding.

Table No.2 : Situation of Contracts

Currency Number of

Contracts

Contract Cost Amount paid Amount

Outstanding

JPY 1 8 057 384 8 057 384 0

USD 3 283 266. 18 283 266. 18 0

XAF 68 4 878 694 589 4 165 829 538 712 865 051

% 85.39% 14.61%

The PIU declares having paid the balance from counterpart funds. However, a study of the accounting

documents does not confirm this piece of information.

4. Field Findings:

The mission unfolded in three stages: (i) field visits and meetings with local authorities, (ii) meeting with

development partners of the education sector (AFD, UNESCO, JICA), (iii) working sessions with PIU of

project. The field visits covered about fourty schools in the littoral, south, south west, north west, west and

centre of Cameroon.

From the field visits, the mission actually noted the achievement of schools infrastructures (construction and/or

rehabilitation of classrooms), equipment with table-cum-benches, the construction safe water points, latrines

as stated in the evaluation report. The mission was informed that for practical reasons, some planned safe

water points were changed to normal connections of running water especially for schools in urban areas. The

construction of infrastructures respected the bubble diagram. The beneficiary population (educating

community, parents and local authorities) indicated their satisfaction and pride to the mission, at having these

structures whose uniqueness is well appreciated and provokes the admiration of parents and the influx of

pupils. The quality of the infrastructure is good and because of their beauty, the people of some localities like

Ekondo Titi have nicknamed it “The University of Ekondo Titi”. In some regions, administrative authorities

sometimes threaten to confiscate staff houses built for Head Teachers.

47

Furthermore, the mission observed that in some schools there is overpopulation in the classrooms of up to 6 to

7 pupils per table-cum-bench, which is about 80 to more than 100 pupils per classroom. Pedagogic officers

explain this overpopulation of classrooms by pressure from parents, education and political authorities who

want to register their children in a « beautiful school » at all cost, without bothering about the school’s

accommodation capacity. Paradoxically, the mission noted that some schools have insufficient teaching staff

while other schools are bulging with teaching staff. The mission thus noted that a certain primary school had

more than 21 teachers, which is an average of 4 teachers per class.

Also, the general report following the field visits shows that more than 95% of the toilets constructed in the

schools are not functional either because of the lack of operational safe water points since most of the water

points or bore holes have no water, or because there is no water, or because of low electrical pressure for the

water catchments. This situation is dramatic and causes problems of hygiene in the immediate environment of

these schools.

As concerns the maintenance of structures or their durability, the mission noted a serious infrastructure

appropriation problem even though project design had envisaged a maintenance mechanism. As a matter of

fact, since the promulgation of the Law on free education, Government rendered contributions for

Parent/Teacher Associations (PTA) optional. The PTAs more or less contributed to the maintenance of

schools (through paying salaries for PTA-employed teachers and guards, general cleaning, settling electricity

and water bills, etc.). With free education and the paying of PTA dues optional, parents in most cases

abandoned the maintenance of schools. That is why school infrastructure is no longer maintained as it should

be. Moreover, in the absence of a security system, there is a renewal of serious acts of vandalism on the

structures. The mission also noted a phenomenon of overuse of classrooms by strangers to the school

(students on vacation), which leads to the rapid degradation of the infrastructure.

However, there was a particularity in the sense that the mission noted (opinion shared by the Japanese

mission JICA, partner in the construction of schools) that schools in the English-speaking areas were better

maintained and preserved than those in the other areas of the country.

48

Annex 4 : Economic Analysis of the Project

ECONOMIC ANALYSIS PREVIEW ACHIEVED COMMENTS

Pilot schools Repeating rate in Pilot

Schools dropped from

40% to 8%

Real profitability

Unforeseen Profit of CFAF 4.392

billion

In the Project impact

area from 40% to

35% being a loss of

CFAF 2. 528 billion

for the State and the

parents

Repeating rate in

Project impact areas

dropped from 40% to

8%, which is a profit of

CFAF 16.181 billion

Anticipated profitability

(simulated)

Unforseen

On the national level,

the profit of the drop of

grade repeating from

40% to 8% will be

CFAF 43. 927 billion

By gathering 300 000 pupils in 150 pilot schools, the PILOT Experience enabled the dropping of repeating rates from 40 % to 8 % thus resulting in a profit of CFAF 4.392 billion for parents and the State. In this regard, anticipated profitability in the Project Impact area will be CFAF 16.181 billion and CFAF 43.927 billion on the national level, against the unit schooling cost which was CFAF 45 758.

49

Annex 5 : Last Procurement Plan

CATEGORY DESCRIPTION ANTICIPATED

PROCUREMENT

METHOD

USED

PROCUREMENT

METHOD

COMMENTS

A STUDY AND SUPERVISION

Framework and

concrete study

Limited international

competitive bidding

Mission considered

untimely

Supervision and

control


competitive bidding


competitive bidding

The cost of this mission

appeared unattractive to

non-regional members

Consultation of

the Study-Action


competitive bidding


competitive bidding

Nothing to report

B CONSTRUCTION AND REHABILITATION

Construction and

rehabilitation

Open national

competitive bidding

(AONO)

Open national

competitive bidding

(AONO)

Inappropriate in

inaccessible areas

because of price

escalation.

Water points Open national

competitive bidding

(AONO)

Open national

competitive bidding

(AONO)

Nothing to report

C FURNITURE

Furniture Open national

competitive bidding

(AONO)

Open national

competitive bidding

(AONO)

Nothing to report

D EQUIPMENT

Vehicles for

district inspectors

and PIU

UNDP supply agency UNDP supply agency Notwithstanding a better

quality/price connection,

this procurement method

does not however

undertake after-sales

services and offers no

technical guarantee

stipulated by the

regulations.

50

Education

manuals for health

and for the

environment

Open international

competitive bidding

(AOIO)

Written by a national

team of experts

Local specificities

(bilingualism)

Teaching

materials

UNDP supply agency UNDP supply agency This procurement

method has not offered

the least technical or

periodic guarantee

against the hidden or

obvious ills of the

product delivered.

E TRAINING

Training of officers

and employees


competitive bidding


competitive bidding

Nothing to report

Training of school

management

committees

Limited national

competitive bidding

Limited national

competitive bidding

Inexistence of national

or local NGOs

specialized in the

domain to short list.

F TECHNICAL ASSISTANCE

PIU Architect Limited international

competitive bidding

Consultation and

consultant

considered untimely

Nothing to report

PIU Accountant Limited international

competitive bidding

Mission considered

untimely

Nothing to report

G OPERATING

Operating cost

Office equipment Consultation of

suppliers at the

national level

Consultation of

suppliers at the

national level

Nothing to report

Consumables Consultation of

suppliers at the

national level

Consultation of

suppliers at the

national level

Nothing to report

H AUDIT

Audit Limited international

competitive bidding


competitive bidding

51

List of Supporting Documents:

CATEGORIES LIST OF SUPPORT ING DOCUMENTS

A Quality control matrix (Quality of works)

B Provisional and final reception reports

C Pupils/seats ratio improved.

Reception reports

D Distribution report of teaching materials supplied by UNDP supply

agency

Delivery reports and reception reports. Activity of training seminars

Outputs of training modules.

Book on the maintenance of school infrastructure. Appraisal report of

reception of vehicles

E Activity of training seminars

Outputs of training modules.

Book on the maintenance of school infrastructure. Appraisal reports

F Consultant’s report and training activity.

G Audit report and mid-term appraisal report

H Audit report and PIU procedures manual

52

Table 1: Level of Achievement of Loan Conditions

A FIRST DISBURSEMENT CONDITIONS IMPLEMENTATION

LEVEL

SPECIFIC COMMENTS

1 Setting up of Project Implementation Unit Achieved Ministerial Decision

No.283/B1/1464

of 5/07/2000

2 Appointment of training officer and the 4

drivers

Achieved Order No.87/A/302/ MINEDUC

of 08 March 2001

3 Opening of two separate Bank accounts Achieved - Special account : Standard

Chartered Bank No. 01080-

200663-19 of 16/10/00

- Account C/P : BICEC No.

96613660001-24 of 18/10/00.

4 Submission to ADB of commitment to

sign standard agreement with school

management committees of primary

schools.

Not achieved Impossible to have this

commitment before the actual

imlementation of school

management committees

5 Creation and implementation of Steering

Committee

Achieved Decision No. 265/B1/1464 of

05/07/2000

6 Allocation of land for new constructions

in Yaounde town

Achieved Order No.01149 to 01153

/AP/JO6/DDUH/SDD

of 06/10/2000 signed by the

Senior Divisional Officer for

Mfoundi.

B

Other Conditions Implementation

Level

Specific Comments

1 Submission of training programmes to

ADB three months after the

implementation and limited list of training

institutions

Achieved

Limited lists forwarded through

mail No. 121/CEP/PE2 of 14 May

2001 and approved on 21 June

2001 by

OCDC.3/FAD/01/06/013/PKd

2 Forwarding to ADB three months after

implementation and proof of recruitment

Limited list forwarded on 24 May

2001

53

of the Architect and Accountant whose

qualifications had been approved by

ADB

Achieved

3 Forwarding to ADB 6 months after

implementation of management

conventions signed between MINEDUC

and the committees before the launching

of competitive biddings.

Partially achieved Conventions prepared. 50

schools out of 86 have signed it.

4 Submission to ADB for its opinion, the

conditions binding PIU to the Projects

Department

Achieved

5 Submission to ADB 1 year after the

implementation of the staff redeployment

strategy

Achieved